Agenda 03/11/2025 Item #11A (Resolution - That the BCC adopt policies to be used in developing the Collier County Government budget for FY2026)3/11/2025
Item # 11.A
ID# 2025-805
Executive Summary
Recommendation to Adopt the FY 2026 Budget Policy, and adopt a Resolution establishing a deadline of May 1, 2025,
for budget submittals by the Supervisor of Elections, the Sheriff’s Office, and the Clerk.
OBJECTIVE: That the Board of County Commissioners (Board) adopt policies to be used in developing the Collier
County Government budget for FY 2026
CONSIDERATIONS: Establishing broad goals to guide governmental decision makers is the first of four budget
process principles developed by the National Advisory Council on State and Local Budgeting (NACSLB) and endorsed
by the Governmental Finance Officers Association (GFOA).
On February 25th, 2025, the Board heard a presentation regarding FY 2026 budget policy, budget timeline, and the
utilization of a priority-based budgeting approach.
On March 4th, 2025, the Board held a Strategic Plan and Priority-Based Budgeting Workshop.
For staff to proceed with the preparation of the FY 2026 priority-based budget, direction is needed from the Board on
major policy issues.
Attached to this Executive Summary is a listing of pertinent policy issues that will affect preparation of the FY 2026
budget. The budget policy document is broken down into three distinct elements. The first consists of budget policies
proposed in FY 2026 that require policy direction from the Board. The second element consists of routine budget
policies that the Board has endorsed for several consecutive fiscal years. The third element consists of a three-year
analysis of the General Fund (0001) and the Unincorporated Area General Fund (1011).
Budget Policy will be established on March 11th, 2025. The Board needs to establish June budget workshop dates.
Tentative dates are Thursday, June 19, 2025, and Friday, June 20, 2025, with meeting times scheduled from 9:00 a.m. to
5:00 p.m. The Florida Association of Counties annual conference is scheduled for Tuesday, June 24th through Friday,
June 27th, 2025, in Orlando, Florida.
Adoption of the maximum tentative millage rates is scheduled for Tuesday, July 8th, 2025. The Board is required by
Florida Statutes to provide the Property Appraiser with the proposed millage rates within 35 days of taxable value
certification which is generally on or around August 12th, 2025, to prepare the Notice of Proposed Property Taxes.
Finally, the Board needs to establish September public hearing dates for the adoption of the FY 2026 budget. The
School Board has tentatively scheduled Tuesday, September 9th, 2025, for their final budget hearing and the County
hearings cannot conflict with School Board hearings. Recommended dates for the Collier County budget public hearings
are Thursday, September 4th, 2025, and Thursday, September 18th, 2025.
This item is consistent with the Collier County strategic plan objective to safeguard taxpayer money by promoting fiscal
stewardship and sound budget oversight.
FISCAL IMPACT: The adopted policies will serve as the framework for the development of the FY 2026 priority-
based budget.
GROWTH MANAGEMENT IMPACT: There is no Growth Management impact.
LEGAL CONSIDERATIONS: Florida Statutes Sec. 129.03(2) provides as follows:
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3/11/2025
Item # 11.A
ID# 2025-805
On or before June 1 of each year, the sheriff, the clerk of the circuit court and county comptroller, the tax collector
subject to a resolution entered into pursuant to s. 145.022(1), and the supervisor of elections shall each submit to the
board of county commissioners a tentative budget for their respective offices for the ensuing fiscal year. However, the
board of county commissioners may, by resolution, require the tentative budgets to be submitted by May 1 of each year.
The remaining requests are in keeping with Chapter 129 of the Florida Statutes (County Annual Budget). With that
noted, this item is approved as to form and legality and requires majority vote for approval. -JAK
RECOMMENDATIONS: That the Board adopts budget policies as detailed in the attachments to this Executive
Summary, establishes June budget workshop dates and September public hearing dates. In addition, the Board adopts
the attached Resolution establishing a May 1st, 2025, deadline for the Supervisor of Elections, the Sheriff’s Office, and
the Clerk’s budget submittals.
PREPARED BY: Christopher Johnson, Director of Corporate Financial and Management Services
ATTACHMENTS:
1. Resolution FY 2026 Budget Policy and Constitutionals
2. Fiscal Year 2026 Recommended Budget Policies to BCC
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A RESOLUTION PURSUANT TO SECTION 129.03, FLORIDA STATUTES'
REQUIRING THE FY 26 TENTATIVE BUDGETS OF THE SHERIFF' THE
SUPER!'ISOR OF ELECTIONS AND THE CLERK TO BE SUBMITTED TO THE
BOARD OF COUNTY COMMISSIONERS BY MAY 1,2025.
WHEREAS, Chapter 129, Florida Statutes, addressing the County annual budget,
provides specifically in Section 129.03, Florida Statutes, that the Board of County
Commissioners may, by resolution, require the tentative budgets ofthe Sheriff, the Supervisor of
Elections and the Clerk to be submitted by May 1 of each year.
NOW,THEREFORE,BE IT RESOLVED BY TFIE BOARD OF COUNTY
CoMMISSIONERS OF COLLIER COUNTY, FLORIDA, pursuant to Section 129.03, Florida
Statutes, that the Sheriff, the Supewisor ofElections, and the Clerk ofthe County of Collier,
Florida, are hereby required to submit their respective tentative budgets for the FY 26 fiscal year
to the Board of County Commissioners by May 1,2025 -
This Resolution shall be effective on its adoption.
This Resolution adopted this 11ft day of March 2025, after motion, second and
majority vote.
ATTEST:
CRYSTAL K. KINZEL, Clerk
A ved as to form and
BOARD OF COUNTY COMMISSIONERS
COLLIER COUNTY, FLOzuDA
By:
Burt L. Saunders, Chairman
.I A.
ACo
ow
RESOLUTION NO.2025-
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Policy Document Page 1
Fiscal Year 2026
Recommended Budget Policies
Collier County Board of County Commissioners
March 11, 2025
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Policy Document Page 2
Table of Contents
Section Pages
1. Overview and Priority-Based Budget Planning 3 to 8
2. General FY 2026 Annual Budget Policies – Significant Influences 9 to 12
3. FY 2026 General Governmental Initiatives 12 to 14
4. Taxable Value Discussion 14 to 15
5. Conservation Collier 15
6. Summary of FY 2026 Budget Strategies 15 to 19
7. County Grant Funding 19 to 20
8. Local Option Infrastructure Sales Tax 20
9. Long-Term Capital and Infrastructure Maintenance Reserve 20
10. General Governmental Capital Asset Management 20 to 24
11. Gas Taxes; Use of Gas Taxes and Gas Tax Pledged Debt 24 to 25
12. General Fund Allocation by Agency/Department 25
13. Storm-Water Management Funding 26
14. Millage Rate Targets for MSTU’s 26
15. Revenue Centric Budgets 26 to 27
16. Mission Critical Program Enhancements (Expanded) Requests 27
17. Compensation Administration 27 to 28
18. Health Insurance 28 to 30
19. Retirement Rates and Accrued Salary Savings 30
20. Financing New and Replacement Capital Infrastructure 30 to 32
21. General Fund Capital/Debt Service Contribution and Debt Mgmt. 33 to 34
22. General Governmental; Enterprise Fund and Other Reserve Policies 34 to 40
23. Suggested Scheduling Timeline 40 to 41
24. Continuing Routine Budget Policies for FY 2026 41 to 43
25. Three-Year Budget Projections – General Fund 44 to 50
26. Three-Year Budget Projections – Unincorporated Area GF 51 to 53
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Policy Document Page 3
Overview and Priority-Based Budget Planning
This policy document covers significant budget influences and provides staff’s budget guidance
recommendations relative to achieving the County’s strategic objectives for FY 2026 and
beyond.
The annual budget policy document consists of three (3) sections which are:
• Annual Budget Policies to be Adopted
• Continuing Routine Budget Policies to be Reaffirmed
• Three-Year Forecast for the General Fund and the Unincorporated Area General Fund
Recommended policies are highlighted in gray throughout this document.
Priority-Based Budgeting
For FY 2026, the County will continue to utilize a Priority-Based Budgeting approach,
allocating resources based on the strategic importance and impact of individual programs. This
method emphasizes the alignment of financial allocations with the organizational goals and
community priorities outlined in the Collier County Strategic Plan. Identifying and ranking
priorities will ensure that limited resources are directed toward initiatives that deliver the
greatest value to the community. Through this transparent and collaborative process involving
stakeholders and community input, the priority-based budgeting approach enables informed
decision-making, fosters accountability, and promotes the efficient use of available resources.
In addition, this approach allows for flexibility in adapting to changing circumstances while
maintaining a focus on achieving the county’s strategic goals.
Year two of the priority-based budgeting process will involve the continued implementation of
cost-saving and revenue generating program insights along with a deeper dive into specific
program processes utilizing benchmarking to ensure efficiency and cost-effectiveness.
Economic Factors
In the past year, the economic environment has transitioned to a more stable state, following a
period characterized by rising interest rates, unprecedented levels of inflation, and increasing
housing expenses. Over the past few years, these factors have contributed to escalating
operating expenses, capital project costs, and considerable upward pressure on payroll.
Taxable value county-wide has increased for the thirteenth (13) consecutive year and is
expected to increase once again for the 2025 (FY 2026) tax year. Major general governmental
revenue sources like sales tax, state shared revenues, and gas taxes all exceeded the forecast for
FY 2024 and are trending at or over budget in FY 2025.
• Single-family new construction building permitting has seen a modest decline compared
to 2023. Through calendar year 2024, the average monthly permits issued was 214,
which is slightly lower than the 2023 average of 245 permits per month and significantly
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Policy Document Page 4
lower than the 2022 monthly average of 304 permits. Most new construction permits are
issued for constructing one- and two-family residential units.
• Although existing home sales activity declined slightly from December 2023 to
December 2024, pricing continued to be seasonally strong despite a significant increase
in inventory. Even with this rise in available homes, median home prices for the period
rose five percent from $797,000 to $837,500.
• In December 2024, Collier County's unemployment rate stood at 3.4%, representing a
modest increase of 0.3% from December 2023. During the same period, Southwest
Florida reported an unemployment rate of 3.6%, the State of Florida reported a rate of
3.4%, while the United States recorded a rate of 4.1%.
• Visitation to the destination year-to-date through November totaled 2.5 million, in line
with 2023. Direct spending for the 2024 period through November totaled $2.62 billion,
a 10.1% increase over the same period in 2023.
As we usher in calendar year 2025, economic indicators generally point to a healthy economic
environment as our community continues to grow. Major employers including Collier County
are continuing to exhibit strong balance sheets and local sales tax, gas tax, state shared revenues,
impact fees, and tourist development taxes remain strong. Senior leadership regularly evaluates
all economic indicators, and the organization is always positioned to respond, if necessary, to
any softening of economic conditions.
The County is positioned to structure and issue strategic general governmental and enterprise
debt for capital projects upon review and recommendation by the Finance Committee. Projects
like the expansion of the transportation grid, general governmental facilities improvements, and
phase two of the eastern expansion of the County’s public utility system will likely require some
form of financing during FY 2026, FY 2027, and beyond.
The Budget as a Tactical Financial Tool and Strategic Policy Model
The annual budget document is considered a single-use tactical financial plan that appropriates
dollars toward one-year initiatives, activities, and projects in furtherance of longer-term policy
strategic objectives embodied in the Collier County Strategic Plan. This tactical budgetary plan
begins with an examination of annual budget policies, which describe in detail the tactical issues
to be funded.
While the budget is a tactical tool, components of the budget also program dollars strategically.
Multi-year capital project funding for key infrastructure often involves a phased approach and can
span three to seven years to achieve project completion. Reserves designated for future asset
maintenance and replacement, vehicle and equipment replacement, natural disasters, and
unforeseen risks are considered critical strategic requirements that emphasize the need for careful
resource allocation among competing short and long-term funding priorities.
As the County’s general governmental and enterprise capital assets grow, repeatedly resourcing
long-term asset maintenance and replacement becomes increasingly important.
For FY 2025, $704 million or 33.4% of the County’s $2.110 billion net budget is for county-wide
enterprise and general governmental capital projects, and capital reserves. Planning numbers for
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Policy Document Page 5
FY 2026 within the General Fund allocate $67.6 million or 9.5% of the $714.5 million spending
plan toward capital initiatives, including projects, debt repayment, and capital reserves.
General Governmental Revenues – FY 2024
Fiscal year ending FY 2024, key governmental revenue sources remain strong. The County’s
General Fund cash position remains within policy guidelines consistent with a stable, highly rated
investment-quality municipal entity, as determined by all three major rating agencies. The
following is a discussion of major general governmental revenue sources.
Local regular half-cent sales tax revenue is the largest non-property tax general governmental
revenue source and is deposited monthly in the General Fund. FY 2024 collections were
marginally lower than FY 2023 and FY 2022 collections by 5.6% and 0.3%, respectively. The
County received $65,042,976 in FY 2022, $68,746,452 in FY 2023, and $64,862,410 in FY 2024.
The following graph depicts the FY 2022 to FY 2024 monthly relationship in collections.
Budgeted half-cent sales tax collections for FY 2025 total $63,275,000, which is modestly lower
than State estimates of $66,261,674.
State revenue sharing is another key general government revenue source deposited in the General
Fund. Like regular sales tax revenue, FY 2024 collections were lower than FY 2023 collections
by 3.1% and over FY 2022 collections by 2.8%. The County received $17,758,152 in FY 2022,
$18,830,743 in FY 2023, and $18,251,220 in FY 2024. The FY 2024 budget totals $16,438,800,
which is slightly conservative compared to the State's estimate of $17,154,515.
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Aggregate special revenue gas tax receipts have continued to grow in FY 2024, increasing over
FY 2023 and FY 2022 by 2.5% and 6.7%, respectively. Actual receipts totaled $24,195,877 in FY
2022, $25,188,635 in FY 2023, and $25,807,581 in FY 2024. For FY 2025, gas tax revenue is
budgeted at $25,100,000 which is slightly below the state estimates of $26,389,396.
Actual Tourist development tax collections in FY 2022 totaled $47,470,485 million and slightly
in FY 2023 to $44,107,953 million. FY 2024 record-setting collections totaled $48,636,664,
surpassing the previous record set in FY 2022 by $1,116,179 million or 2.5%. FY 2025 collections
are trending slightly downward, with collections through January down 0.2% year over year.
Natural Disaster Planning/Hurricane Ian
The County has devoted substantial effort and resources to its recovery efforts in the aftermath of
Hurricanes Ian, Idalia, Debby, Helene and Milton. As of January, the BCC has approved in excess
of $147 million in funding for recovery and has expended upward of $92 million on these efforts.
To date, the County has recovered $43 million in FEMA and insurance reimbursements.
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The following summary table for FY 2025 shows the hurricane recovery budget and actuals by
storm as of January 1, 2025.
There will be a significant budgetary impact in FY 2025 and FY 2026 from these storms, which
will largely depend upon when reimbursement revenue is received. Corporate Financial &
Management Services (CFMS) closely monitors the reimbursement stream with a keen eye toward
implementing any necessary FY 2025 budget adjustments to ensure sufficient cash balances are
maintained in affected funds. Any necessary budget adjustments will primarily affect reserves and
capital budgets through the appropriation of reserves, reduction in capital transfers, and deferring
of appropriate capital projects. Upon receipt of reimbursements, when possible, budgets utilized
to fund hurricane recovery efforts will be appropriately restored.
The County is prepared to cash flow the response necessary to restore the community from natural
disasters utilizing four specific budget techniques:
• First, general governmental and affected enterprise fund reserves are drawn down in
appropriate and prudent amounts. Additionally, available Conservation Collier reserves
may be loaned for recovery efforts.
• Second, existing capital project budgets are reviewed, and funding is reallocated where
appropriate.
• Third, in funds where enough cash balance exists, FEMA revenue is budgeted, and a
corresponding expense budget is appropriated, anticipating some level of reimbursement
in the coming months/years. Planned revenue and existing fund balances are utilized for
cash flow until the receipt of FEMA deposits.
County leadership is committed to a value-added coordinated emergency management approach
which unites all County Agencies and external partners as future natural disasters threaten Collier
County.
General Budget Planning
The FY 2026 budget plan will allocate funding utilizing a priority-based budgeting approach for
recurring operational expenses and continue funding for replacement capital infrastructure and
maintenance, as well as new capital initiatives not funded through the local option infrastructure
sales tax. Capital and operational programming continue to compete for limited resources, which
is always a pressure point as appropriation decisions are made for the General Fund (0001) and
Unincorporated Area General Fund (1011). That said, the budget document must remain flexible
Hurricane Budget Expense
Ian 130,457,096$ 90,003,635$
Idalia 30,742$ 30,351$
Debby 479,175$ 289,525$
Helene 1,873,127$ 954,136$
Milton 14,950,045$ 784,175$
Total 147,790,185$ 92,061,821$
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- a key component of the budget management process and widely recognized by those agencies
who are consumers of the County’s budget data and offer financial ratings of our agency.
The budget as a flexible financial planning document will be subject to many changes in FY
2026 with several financial variables yet to be determined, including:
• Program prioritization to align financial allocations with organizational goals and
community needs outlined in the County’s Strategic Plan.
• Tax policy decisions by the Board will determine the level of budget flexibility and the
specific resource allocation for operations, capital transfers, and reserves; the payment
of debt will not be affected by the Board’s tax policy decision.
• While the issuance of debt is not programmed within the adopted budget, the budget will
be positioned for amendment during any fiscal year to allow for financing projects like
the expansion of the transportation grid, stormwater improvements, public utility
expansion to service eastern lands development and Golden Gate; government facilities
improvements; and other policy initiatives as directed by the Board.
• Extent of additional gap funding to complete future construction phases of the Paradise
Coast Sports Complex.
• Planning for recurring general governmental funding to maintain storm-water
infrastructure; continue a “pay as you go” capital component and payment of debt service
all totaling a planned $20.5 million consisting of appropriations from the General Fund
and Unincorporated Area General Fund.
• Board policy guidance on issues like workforce and first responder housing; mental
health programming; continued development of the Golden Gate Golf Course property,
Hussey property, Camp Keais property, and potentially the Williams Property; and any
operational implications to Community Priorities funded by the voter-approved local
option infrastructure sales tax.
• Existing taxable value-dependent support of economic development innovation zones
and CRA tax increments.
• Level of capital and operational funding connected with strategic relocation of various
governmental functions on the main campus, including implications from community
priorities funded by the local option infrastructure sales tax like constructing the mental
health facility; costs connected with back-office infrastructure replacement including
information technology system upgrades.
• Level of General Fund transfer support to the constitutional officers, specifically the
Sheriff.
• Constitutional officer capital funding requests.
• Amount of General Fund dollars, if any, required to backfill the impact fee trust funds
due to continued State Legislation restricting the use of general governmental impact
fees and/or insufficient impact fee collections.
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Annual Budget Policies
Significant Budget Influences:
Utilizing a priority-based budgeting approach in conjunction with budgetary control lines,
resources will be allocated to competing services, programs, projects, and capital initiatives.
Within the pyramid of service and program delivery, significant resources have been and will
continue to be devoted to public safety, public health, debt management, and the replacement of
priority mission-critical infrastructure and equipment. Property (ad valorem) taxes will once again
dominate the County’s budgetary revenue mix, which for FY 2025 comprises about 46% of total
net recurring annual operating revenue and 63% of General Fund recurring revenue sources.
Seventy-four percent (74%) of General Fund revenue is comprised of property taxes, sales tax,
and state-shared revenue.
Eighty percent (80%) of all property taxes levied by Collier County Government are deposited
into the General Fund, and 47% of those collections, including state-required board-paid
components, support constitutional officer operations, including the Sheriff. Thus, significant
Ad Valorem
46%Gas/Sales Tax
7%
Permits/
Assessments/
Fines
7%
Intergov'tal
Revenues
2%
Service Charges
30%Impact Fees
5%
Bond
Proceeds/
Interest
3%
Sources of Current County Government
Operating Revenues all Funds (FY 2025)
Ad Valorem
63%Sales Tax
9%
State Revenu
Sharing
2%
Intergov'tal
Revenues
0.5%
Fines,
Permits,
Charges 3%
Interest &
Misc.
0.5%
Carryforward
20%Interfund
Transfers and
Payments
1%
Transfers from
Consitutional
Officers
1%
FY 2025 General Fund Revenue Sources
General Fund
80%
MSTU's 2%
Conservation
Collier 6%
Pollution
Control 1%
Unincorporated
Area General
Fund 11%
Property Tax by Major Funds
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Policy Document Page 10
attention is paid to property (ad valorem) taxes and factors that can influence millage rate and tax
levy decisions.
Policy planning utilizes a 5% increase in taxable value. This results in a FY 2026 planning levy
increase of $22.9 million over the FY 2025 adopted levy. The following points are noteworthy
in considering general governmental tax policy for FY 2026.
• The BCC adopted a rolled-back rate of $3.0107 in FY 2025 for the General Fund. This
was the second consecutive year adopting the rolled-back, a departure from the previous
fourteen (14) years of implementing the millage neutral rate of 3.5645. This has resulted
in taxpayer savings in excess of $152 million over the two-year period.
• The state calculation for determining the rolled-back rate includes the net new taxable
value from new construction, but it does not include changes to the aggregate existing
tax base.
• Relying solely on the rolled-back rate as a measure of tax relief presents potential issues
that can compound over time. The concern lies in the cumulative effect should the Board
decide that the rolled-back rate is the new normal. The rolled-back may not generate the
incremental revenue necessary to sustain the County's substantial infrastructure
investments, let alone capital facility expansion and related services for a growing
population.
• Property taxes comprise 63% of total General Fund recurring revenue.
• Planned within the General Fund for FY 2026 is $67.6 million supporting various general
governmental capital initiatives, in the areas of transportation, parks and recreation,
stormwater, museums, and constitutional capital requests.
• Constitutional operating transfers out of the General Fund (including board-paid
requirements) constitute 47% of all FY 2025 General Fund appropriations. While the
Board can control these appropriations, based on history, it is not likely that cuts would
be made to constitutional officer operations, especially the Sheriff.
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Of the $698.2 million FY 2025 General Fund Budget, only about 27%, or $187.3 million, is
considered somewhat discretionary. The remaining appropriations are classified as Health, Safety,
and Welfare (58.3%), Debt Service (1.1%), and Mandates (13.8%), where there is very limited to no
discretion over appropriations.
Property tax revenue comprises 78% of Unincorporated Area General Fund operating revenue
sources, and when including the Communication Services revenue sharing from the State, the
revenue mix jumps to 82%.
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Like the General Fund, flexibility exists within the Unincorporated Area General Fund if a
response to a state-shared communication services tax reduction is required. A substantial decrease
in the state shared communication services tax would require cuts to general governmental
operating programs and/or capital transfers, absent a replacement revenue source like a franchise
fee. Florida counties possess the right and power to enter into a franchise agreement with utilities
– typically electrical - in which the franchise establishes terms for the use of rights of way and the
compensation to be received for allowing the use of rights of way. The compensation can be up to
6% of a utility's revenue from customers located within the county's unincorporated political
boundary. Many Florida counties and incorporated municipalities have entered into utility
franchise agreements. For example, electric utility customers in Lee County currently pay a 4.5%
fee on their utility bills, which generates over $25 million annually.
FY 2026 General Governmental Initiatives:
Identified general governmental capital improvements/operating initiatives over the next few years
include:
• Year two of utilizing a priority-based budgeting approach to enhance organizational
performance, optimize program spending, and diversify revenues.
• Master planning on the Camp Keais and Hussey property.
• Park system infrastructure renewal and replacement.
• Major upgrade or replacement and hardening of the County’s 800MHz radio network.
• Repair of facilities damaged by hurricanes.
• Constructing phase three of the Paradise Coast Sports Complex including related
operations.
• Promote economic development by increasing affordable housing options for the area’s
workforce.
• Continued construction of Big Corkscrew Island Regional Park.
• Ongoing development of the Golden Gate Golf Course.
• Upgrades to IT infrastructure, including security measures and the County’s various
management, financial, and accounting software.
• Consideration of the operational and maintenance implications associated with
constructing projects funded by the local option infrastructure sales tax.
• Continued restoration of reserves utilized for hurricane recovery.
• Sheriff’s capital projects, including various maintenance and facility upgrades.
• Ongoing funding for storm-water maintenance and continued capital infrastructure
upgrades.
• Annual funding for the Ochopee Fire Service agreement with Greater Naples Fire
District.
• Contributions to economic development initiatives like innovation zones.
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• Funding for unforeseen state and federal mandates.
Whether paid by cash, financed, or funded through the Local Option Infrastructure Sales Tax, the
operating and maintenance costs associated with the enhanced level of infrastructure
improvements and service initiatives will require a substantial investment of limited general
governmental operating revenue primarily derived from property taxes.
Recognizing the County’s growing future general governmental asset maintenance responsibility,
reserve dollars of at least $5 million are planned to be replenished for FY 2026 with the potential
for additional allocations based on future tax decisions and budget prioritization. These reserves
are dedicated to maintaining the County’s future general governmental hard and soft infrastructure
investment. It is envisioned that the reserve amount will continue to grow in varying amounts but
no less than $5 million annually, with the amount ultimately tied to the prioritization of the Board’s
budget. Regular annual deposits to this fund isolate dollars for future asset maintenance from
competing programs, services, and initiatives that receive dollars from a limited resource pool. At
the very least, cash on hand through this reserve will provide a hedge against natural disasters and
potentially lessen the need for government borrowing in the future.
General Fund and Unincorporated Area General Fund contributions to CRAs and innovation zones
for FY 2025 totaled $15.1 million (an increase of $2.3 million over FY 2024) and $1.8 million (an
increase of $301K over FY 2024), respectively. These numbers will grow in FY 2026 with
projected tax base increases.
Other factors that will be significantly impacted by general governmental tax policy include:
• Extent of capital and operational transfer dollars expended by the General Fund and
Unincorporated Area General Fund.
• Level of service standards set by the Board for agencies and departments funded within the
General Fund and Unincorporated Area General Fund.
• Proper level of resources to cover the organization’s current and future asset maintenance
responsibility. Competing priorities between operating and capital expenses within a
revenue structure heavily reliant upon property taxes.
• General Fund and/or Unincorporated Area General Fund support for new or re-prioritized
operating and capital initiatives which were described above under FY 2026 general
governmental initiatives.
• Impacts of potential unfunded mandates, including continued state legislative attacks to
limit a county's ability to raise property tax revenue and repeated attempts to reduce
existing shared revenue sources like the Communication Services Tax (CST); further
reductions in state health care and social service funding; continued attempts to very
restrictively define how impact fee revenue can be used; as well as impacts from any
reduction in federal payment in lieu of taxes (PILT) funding.
• Level of General Fund Ad Valorem operating support extended to constitutional officers,
specifically the Sheriff.
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What will not be impacted by the Board’s tax policy decisions are:
1. Maintaining a strong beginning year General Fund and Unincorporated Area General
Fund cash balance in accordance with policy.
2. Policy-driven growth in general governmental reserves.
3. Scheduled annual payments on the County’s debt service; and
4. Maintaining the County’s excellent market credit rating.
Discussion of Taxable Values for the General Fund (County-Wide) and Unincorporated
Area General Fund and Related FY 2026 Budget and Financial Strategies
The county-wide tax base has increased for thirteen (13) consecutive years and is expected to
increase again for FY 2026. The following table provides a history of Countywide and
Unincorporated Area taxable values over the past ten (10) years (tax year 2015-2025), as well as
the budget planning projection for tax year 2025 (FY 2026).
Tax Year
County Wide
Taxable Value
County Wide %
inc. (dec)
Unincorporated
Area Taxable Value
Unincorporated
Area % inc. (dec.)
2015 (FY 2016) $70,086,389,131 8.5% $43,075,586,559 8.7%
2016 (FY 2017) $77,115,163,725 10.0% $47,455,161,371 10.2%
2017 (FY 2018) $83,597,615,791 8.4% $51,754,136,138 9.1%
2018 (FY 2019) $88,274,604,097 5.6% $54,773,401,334 5.9%
2019 (FY 2020) $93,175,403,621 5.6% $58,037,803,377 5.9%
2020 (FY2021) $99,159,595,002 6.4% $62,320,804,025 7.4%
2021 (FY2022) $104,676,789,159 5.6% $65,863,629,475 5.7%
2022 (FY2023) $122,148,279,016 16.7% $77,004,583,159 16.9%
2023 (FY2024) $137,990,051,102 13.0% $87,324,290,475 13.4%
2024 (FY 2025) $152,250,026,928 10.3% $96,501,695,704 10.5%
2025 (FY 2026)
Planning $159,862,528,274 5.0% $101,326,780,489 5.0%
The July 2024 State Ad Valorem Estimating Conference Report for the 2025 tax year (FY 2026)
projects a significant increase of 12.3% in Collier County's certified taxable values (county-wide).
Over the years, our staff has demonstrated adeptness in formulating the planning budget around a
conservative yet functional taxable value estimate, allowing for maximum flexibility. This is
crucial as most budget planning occurs before the certified taxable value data is received from the
Property Appraiser at the end of June.
The FY 2026 budget planning strategy revolves around a conservative projection of a 5.0% ad
valorem increase in taxable value. Recommended millage rates will be calculated based on budget
requirements while adhering to established control lines and preliminary taxable value
assessments. Adjustments to programs or the reallocation of funds resulting from budget
prioritization may result in changes to the recommended millage rates.
The General Fund and Unincorporated Area General Fund tax or “millage” rate has varied over
the years and has been influenced by the taxable value environment and State legislation.
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Tax or “millage” rates for the past nineteen (10) years are shown in table form below.
Millage Area FY16 FY17-FY23
(7 Years)
FY 24 FY 25
FY 26
Planning
General Fund $3.5645 $3.5645 $3.2043 $3.0107 TBD
Unincorporated
Area General Fund
$.7161 $.8069 $.7280 $.6844 TBD
According to the Urban Institute, property tax collections by local governments typically constitute
an average of 30% of all general governmental collections for local governments. Within our
county, property tax revenue plays a significant role, representing 63% of the General Fund (0001)
and 46% of the total net county recurring revenue budget, inclusive of fund balances.
Conservation Collier - On November 3, 2020, the Collier County electors approved the
Conservation Collier Re-establishment referendum with a 76.5% majority. This voter approval set
a county-wide millage rate not to exceed $.2500 mills for ten (10) years and does not include the
issuance of debt to acquire environmentally sensitive land.
In FY 2025, the budget included the rolled-back millage rate of $0.2096, generating approximately
$31.9 million in property taxes. Consistent with Ordinance 2002-63 as amended, the Board
approves, via the budget, the percent of annual gross tax receipts transferred into the Conservation
Collier Management Trust Fund to provide for long-term management of lands acquired through
or managed by the Conservation Collier Program. For FY 2025, this budgeted transfer totals $6.9
million or 21.6%.
Planned FY 2026 allocations will be consistent with the approved Conservation Collier Ordinance.
The recommended millage rate will be calculated based on preliminary taxable value assessments
and budget requirements while adhering to established control lines.
Summary of Significant FY 2026 Adopted Budget Strategies to Achieve a Structurally
Balanced Budget
The following table highlights specific FY 2026 budget strategies detailed within this document,
which the Board will consider as part of the Adopted Budget Policies.
1 The County Manager is proposing to submit one FY 2026 General Fund (0001)
operating budget along with service level and related budgetary and millage
implications. Planning for recurring operating cost increases of 3.0% is above the
identified CPI increase of 2.8% (see discussion below). It will result in department
prioritization and adjustments within strategically identified areas to meet this budget
guidance. The FY 2025 General Fund Adopted Budget appropriates dollars to fund all
constitutional agency operations, which is roughly 47% of all General Fund
appropriations; County Manager agency operations; substantial capital transfers not
including capital reserves and debt service totaling $41.5 million to general
governmental facilities and constitutional capital needs, the regional park system, the
transportation network, stormwater maintenance, and museums. General Fund
reserves for FY 2025 are within policy parameters and currently total $77.6 million.
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2 Proposed FY 2026 guidance for the Unincorporated Area General Fund (1011)
includes recurring operating cost increases of 3.0%. The recommended millage rate
will be calculated based on prioritized budget requirements while adhering to
established control lines and preliminary taxable value assessments. The
Unincorporated Area General Fund appropriates dollars for operating services like
community parks, road maintenance, stormwater, landscape operations and
maintenance, comprehensive planning, zoning and land use, code enforcement, and
coastal zone operations. Substantial capital transfers to parks, the transportation
network, landscape maintenance, and stormwater maintenance continue, and for FY
2025, those capital transfer dollars totaled $24.4 million. Reserves continue to be
funded at policy levels, which is a minimum of one month of operating expenses.
3 County Manager agency expanded services will be limited to operating new Board-
approved capital facilities, priority-based level of service adjustments, and/or
historically strained mission-critical imperatives. These program enhancement requests
must identify the strategic focus area(s) and strategic objective(s) that are being satisfied.
These items will be reviewed by the County Manager’s Office and presented to the BCC
at the June workshop. County Manager Agency's total budgeted personal services costs
for FY 2025 is $267.8 million or 51% of all County personnel costs. Constitutional
budgeted personal services for FY 2025 totals $257.2 million, or 49% of County
Personnel costs.
4 Pursue a strategy in FY 2026 that continues to place a premium on current
infrastructure replacement/maintenance on a pay-as-you-go basis by allotting a 5%
increase to related capital transfers from the General Fund (0001) and Unincorporated
Area General Fund (1011). Integrate capital financing where prudent and economically
appropriate pursuant to the Debt Management Policy. No debt will be programmed as
part of the adopted budget. Instead, any financing will be part of the amended budget
based on policy directives.
5 Recognizing the County’s mounting future general governmental asset maintenance
responsibility, in FY 2026 an additional $5 million is included in the planning scenario
to be allocated to the restricted future capital reserve created in FY 2020. These
reserve dollars are dedicated to protecting the County’s future general governmental
hard and soft infrastructure investment. Regular annual deposits to this fund emphasize
the need to isolate dollars for this future asset maintenance obligation, knowing the
many competing programs, services, and initiatives compete for funding from a
limited resource pool.
6 Establish budget parameters for enterprise operations which are tied to working capital
guidelines established by the Government Finance Officers Association (GFOA);
capital obligations from the capital improvement element (CIE); any rate or fee studies
stipulations; priority agency-wide expansion initiatives; and statutory or ordinance
spending limitations. A critical review of operating and capital reserve levels versus
operating and capital appropriations will be discussed during County Manager budget
deliberations with an expectation that enough recurring resources are devoted to
maintaining the utility asset at a high standard while resources are set aside to protect
cash and fulfill our fiduciary responsibility to public protection in the event of a natural
disaster.
7 Continue General Fund (0001) county-wide debt and capital transfers to cover regular
special obligation revenue bond debt service; provide any necessary investment to the
impact fee trust funds to cover the debt service gap due to insufficient impact fee
collections; fund park’s capital; fund constitutional officer capital needs; and help pay
for needed general governmental facility repairs.
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8 The FY 2026 budget planning model allocates $20.5 million from the General Fund
and Unincorporated Area General Fund toward existing storm-water infrastructure
maintenance, pay-as-you-go capital, operations, and debt repayment. Debt service on
the recent 2020A Special Obligation Revenue Bond – $60 million stormwater
component – totals $2.2 million for FY 2026; thus, the net amount for stormwater
capital, system maintenance, and operating components totals $18.3 million. Continue
discussions on potential Stormwater Utility funding via millage or special assessment.
9 The FY 2026 planning model increases the park capital and infrastructure maintenance
general governmental transfer to $7.6 million; the net amount after covering FY 2026
debt service of approximately $700K on the $20 million 2020A Special Obligation
Revenue Bond component totals $8.3 million.
10 The FY 2026 budget will be planned with maximum flexibility, which will allow for
quick adjustments resulting from a softening economy, natural disasters, board policy
initiatives, debt issuance, changing expense timing, and unforeseen unfunded
mandates.
11 Establish General Fund (0001) contingency reserve at 3.0% of the total budgeted
appropriation (less capital/debt transfers) and maintain the General Fund cash balance
reserve at $63.4 million, bringing total General Fund reserves to $79.6 million, an
increase of $2.1 million over FY 2025. This modest growth in the General Fund
reserves is extremely important to protect the funds beginning FY cash position,
present a position of financial strength to the rating agencies, avoid more aggressive
expenditure controls as budget margins tighten, position the County to become more
self-reliant knowing that federal and state funding, as well as funding guidelines, will
continue to tighten and become more onerous; and, if necessary tap reserves to cover
any emergency disaster expenses and/or strategic Board policy initiatives.
12 Use gas tax revenue to support road capital, maintenance, and debt (with an emphasis
on debt) consistent with budget planning and statutory requirements.
13 Continue dialog, where appropriate, on future new and sustaining revenue sources, like
infrastructure surtax, stormwater utility, or a franchise fee applicable to
unincorporated area electric utility customers, to diversify the composition of the
County’s recurring general governmental revenue mix.
A control line of 3.0% for operational increases at the department level is planned. This means
that department operations for FY 2026, which rely on the General Fund and Unincorporated Area
General Fund for dollars, will be restricted to a 3.0% increase for current programs, services, and
operating transfers. For FY 2026, the percentage operating adjustment will be translated into a
dollar value for each department head to consider as priorities dictate. Mission-critical program
enhancements (Expanded Requests) will be reviewed case-by-case.
Limited general governmental operational expense increases are expected and will be appropriated
to account for new programs and services instituted during FY 2025, inflationary-adjusted fixed
costs, and maintaining a competitive compensation package. The December 2024 over December
2023 CPI for the Miami Fort Lauderdale SMSA is 2.8%. The inflation rate is expected to remain
relatively stable over the coming months.
A control line of 5% is planned for capital replacement and renewal transfers from the General
Fund and Unincorporated Area General Fund. The remaining portion of budget planning dollars,
ultimately determined by established tax rates, will be applied to prioritized agency-wide new
capital projects that are not covered by impact fees or the local option infrastructure sales tax.
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These prioritized projects will be presented to the Board in June. Approved projects will primarily
result in increases to General Fund and Unincorporated Area General Fund capital transfers for
general governmental and constitutional facilities, the transportation network, parks, and
stormwater.
For FY 2026 planning purposes and discussion in this policy document, the total General Fund
Budget is programmed to increase by $16.3 million. The following table depicts by category the
positive or negative revenue and expense changes connected with the FY 2026 General Fund
Planning Budget and the variances from FY 2025.
Several observations can be made from this table. As discussed throughout this document, property
tax revenue dominates general governmental funding. Of significance also is carry-forward (fund
balance) at year-end which influences expenditure planning and the respective capital and
operating allocations. Maintaining a healthy fund balance requires priority funding of reserves as
indicated in the analysis above.
The General Fund budgeted carryforward planned at year ending 9/30/2025 results from proactive
budget planning and management knowing that the target at year-end is between $130 and $145
million. The plethora of new general governmental initiatives; cash flow requirements connected
with grants; constitutional officer statutorily required cash flow; steadily increasing asset
replacement and maintenance recurring requirements; reserving dollars for future asset
replacement and maintenance; positioning the budget to issue debt if necessary, during the budget
cycle; and ensuring budget flexibility demands that adequate cash is on hand at year-end.
The decrease in General Fund budgeted carryforward of $14.3 million is primarily a result of
forecast transfers to Disaster Recovery Fund (1813) for continuing hurricane recovery efforts.
Though the County has positioned itself for reimbursement from FEMA, due to timing uncertainty
of reimbursements, these revenues were not included in the FY 2025 forecast. Though planned to
Variance between Budget FY
Ad Valorem Taxes $22,919,000
Sales Tax & Revenue Sharing 2,034,000
Department Revenues 5,495,600
Enterprise and Federal PILT and Cost Allocation 514,600
Transfer Revenue 23,800
Interest 546,800
Carryforward (14,334,300)
Less 5% Required Revenue Reserve (870,700)
16,328,800
County Manager, Court and Other General
Operations $3,540,700
Operating Transfer’s 3,029,700
Capital & Debt Transfer’s (8,713,800)
Sheriff 14,373,900
Other Constitutional Officers 2,038,900
Reserves 2,059,400
16,328,800Total Expenditure Increases
Major Revenue Variances:
Total Revenue Increases
Major Expenditure Variances
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Policy Document Page 19
be modestly reduced, this position will continue to allow for flexible operating, capital transfer,
and reserve appropriation planning leading into FY 2026.
Under the current planning scenario, capital transfers will be reduced by $8.7 million. Prioritized
budgeting of additional general governmental capital programs utilizing incremental tax dollars
above and beyond the planning scenario will be an option.
The planned increase in all General Fund budgeted reserves represents a regular managed increase
of $2.1 million over FY 2025, consistent with policy planning standards. Impact Fee collections
remain stable, and for FY 2026, $2.1 million is required from the General Fund to subsidize
growth-related debt.
Each new program, service, initiative, or capital facility has recurring funding obligations, and the
layering effect becomes magnified each fiscal year. Whether staffing and operating new facilities,
contributing to economic development incentive zones, satisfying approved economic
development agreements, storm-water programming, senior facility initiatives, buying land,
fostering workforce housing, supporting social services, investing in our public safety facilities,
or the myriad of other current or future funding requirements, the County’s annual public safety
investment and servicing a demanding and growing citizenry requires stable resources and
currently that stable resource is primarily property taxes.
Budget management is ongoing as a balancing measure, and expenditure controls are always in
place and monitored continually. Likewise, execution patterns and transfer dollars are scrutinized
to ensure that appropriations are properly executed and spent for their intended purpose.
While it is important to recognize our ongoing program, service, and capital commitments which
have made Collier County “the best community in America to live, work, and play”, the level
of dollars devoted to this laudable goal must be measured against the continued need to maintain
prudent reserve levels; protect against any revenue shortfalls; guard against any assault by the state
legislature on the ad valorem and general county tax/revenue structure; and fulfill public
expectation to maintain/enhance service levels. Maintaining appropriate General Fund cash is
always a major focus, and by policy, the cash position is set at a minimum of 15% of actual
expenditures. Given our current General Fund reserve levels and cash flow requirements, it has
been prudent and CFMS staff strives to maintain a cash position in this fund of between 20% and
30% of actual expenses. The actual General Fund carryforward position at the year ending 9/30/24
totaled $176.5 million or 30.4% of actual expenses for FY 2024.
Each fiscal year, the cash requirements due from the General Fund during the first quarter of the
fiscal year increase. Funds are necessary to meet mandated cash flow transfers to the Constitutional
Officers, cover general operating requirements, pay debt service, fulfill required CRA and
Innovation Zone transfers, and generally sustain operations before property tax receipts are
received in December.
County Grant Funding:
County participation in the State and Federal grant process remains aggressive, but while the
common thinking is that grants are free money, the administrative burden surrounding application,
on-site post-award administration, and single audit compliance notwithstanding the local match
requirements and cash flow realities must not be overlooked. Program areas where grants are
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prevalent include the Metropolitan Planning Organization (MPO), Transit, Housing,
Transportation, Stormwater, Airports, Parks, Disaster Recovery, and other areas. As of February
2025, the County had $525.2 million in active grants plus another $80.5 million scheduled to
become active. Of the total $525.2 million active or soon-to-be active grants, the local match
requirement totals $85 million, which must be identified from the respective Department’s existing
appropriations through a budget amendment as part of the grant award process.
Local Option Infrastructure Sales Tax:
Local Option Infrastructure Sales Tax Capital Fund (3018) provides the accounting structure for
managing all projects approved by the Board consistent with Ordinance 2018-21. As of January
2025, thirty-seven (37) validated projects have been budgeted within three categories:
Transportation, Facilities & Capital Replacements, and Community priority projects. Once a
project is approved by the Board, the project accounting structure is set up, and the budget is moved
from reserves to a project budget. A total of $520.9 million in infrastructure sales tax revenue has
been received. Additionally, interest income on these proceeds has amounted to $24.2 million.
Given that the expected revenue of $490 million was reached in FY 2024, the Board authorized
the sunset of collections, effective December 31st, 2023.
Future General Governmental Capital Improvements
Long-Term Capital Reserve
Recognizing the County’s mounting future general governmental asset maintenance responsibility,
a Reserve Fund was created for FY 2020, fencing off dollars in incremental amounts annually
dedicated to protecting the County’s future hard and soft general governmental infrastructure
investment. Regular annual deposits to this fund emphasize the need to isolate dollars for future
asset maintenance obligations, knowing the many competing programs, services, and initiatives
that must receive dollars from a limited resource pool. For FY 2026, $5 million is planned to be
funded, bringing the total reserve amount to $12.6 million. Drawing on this reserve will require
Board action under guidelines developed by CFMS and the County Manager.
Capital Asset Management
Each year, a significant portion of available annual resources are devoted to maintaining and
managing the County’s general governmental infrastructure base. This strategy will continue
Transportation
36%
Facilities &
Capital
Replacements
35%
Community
Priorities
22%
Unallocated
7%
INFRASTRUCTURE SALES TAX FUNDING
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knowing that nonrecurring proceeds from the Local Option Infrastructure Sales Tax can only be
used for capital construction, and proceeds will be applied to specifically identified and strategic
capital projects. The current pay-as-you-go strategy recognizes that satisfying all new planned and
programmed capital requirements over the next five (5) years contained within the Capital
Improvement Element (CIE) will require some financing component despite the local option
infrastructure sales tax.
The County issued competitive bond financing in November 2020 to maintain, replace existing,
and construct new storm-water infrastructure; replace park aquatic systems and related recreation
improvements; payoff variable rate commercial paper used to purchase the Amateur Sports
complex property; and purchase strategic eastern lands property. Augmenting the annual cash and
carry component of infrastructure maintenance are dollars set aside in a separate reserve fund for
future infrastructure replacement and maintenance. Available resources will continue to be
allocated prudently and economically to fund operations at required service levels and construct
and maintain strategic capital improvements.
The following table provides a description of historical budget allocations and what is currently
planned in FY 2026 from the General Fund budget to support ongoing asset maintenance, strategic
new capital requirements, fund growth, and non-growth debt obligations.
Category
General Fund
Non-Growth
Debt
Investment
for Impact
Fee Funds -
Debt
Investment
for Impact
Fee Funds –
Projects*
County
Wide
Capital
Transfer for
Other
Capital
Transfer to
Parks
Transfer to
Road
Network
Transfer to
Storm-Water
Capital
Long-Term
Replacement
Capital
Reserve
Total
FY 2017 $3,073,000 $2,476,900 $0 $10,697,500 $4,000,000 $2,495,700 $8,460,000 $2,525,000 $0 $33,728,100
FY 2018 $2,855,200 $3,306,800 $2,000,000 $12,006,000 $4,313,500 $1,100,000 $11,650,400 $1,627,000 $0 $38,858,900
FY 2019 $3,479,400 $3,958,700 $216,200 $11,160,800 $645,000 $1,100,000 $8,555,800 $2,500,000 $0 $31,615,900
FY 2020 $3,694,200 $1,040,200 $0 $10,591,500 $1,625,600 $3,200,000 $9,388,900 $4,694,400 $5,000,000 $39,234,800
FY 2021 $3,650,400 $2,192,100 $0 $12,265,900 $4,753,000 $3,350,000 $8,817,300 $4,868,800 $5,000,000 $44,897,500
FY 2022 $8,908,000 $1,832,000 $0 $20,743,600 $4,435,000 $3,070,000 $8,817,300 $2,677,800 $7,500,000 $57,983,700
FY 2023 $7,774,700 $757,700 $0 $29,918,600 $6,628,300 $3,177,500 $10,625,900 $8,271,500 $18,300,000 $85,454,200
FY 2024 $7,957,100 $1,383,900 $0 $29,883,300 $16,839,100 $3,000,000 $9,200,000 $2,800,000 $21,667,300 $92,730,700
FY 2025 $7,769,400 $1,700,700 $0 $26,902,400 $14,441,900 $3,150,000 $9,660,000 $2,940,000 $7,617,100 $74,181,500
FY 2026 $8,080,000 $2,124,100 $0 $27,276,100 $8,578,400 $3,307,500 $10,143,000 $3,087,000 $5,000,000 $67,596,100
* FY18: Additional Funding for EMS Station. FY 19 EMS Station.
For FY 2026, the planned funding scenario includes a 5% increase in taxable value. Allocations
will, of course, be subject to Board guidance on millage rates and taxable property values received
in July 2025. For perspective, countywide capital and debt service expenses contained within the
planning model and shown above amount to 9.5% of all General Fund planned appropriations for
FY 2026. When you include Constitutional Officer transfers at 47.3% of planned FY 2026 General
Fund expenses, and reserves, which are 11.1% of total General Fund expenses, these three
components account for 67.8% of all General Fund expenses in the planning model.
The General Fund regularly appropriates substantial dollars to new general governmental capital
and asset replacement projects benefitting countywide residents. This level of capital planning,
which generally translates into approved budget appropriations, provides part of the highly
desirable budget flexibility that is essential to sound fiscal management. Preserving General Fund
cash, maintaining adequate reserves, protecting the County’s superior investment quality credit
rating, and paying debt service will always take priority as expenditure planning evolves.
Generally, these priorities are strategically managed, and allocations are made in harmony with
other capital and operating spending appropriations.
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Robust capital contributions are also appropriated within the Unincorporated Area General Fund
to augment the County’s commitment to capital programming. The following table depicts these
planned capital contributions.
Unincorporated Area
General Fund
Transfer
to Parks
Transfer to
Roads
Transfer to
Storm-Water
Capital
Total
FY 2017 $750,000 $3,300,000 $4,172,000 $8,222,000
FY 2018 $1,250,000 $4,000,000 $4,267,900 $9,517,900
FY 2019 $2,750,000 $4,250,000 $3,000,000 $10,000,000
FY 2020 $2,500,000 $4,000,000 $1,300,000 $7,800,000
FY 2021 $2,950,000 $3,000,000 $3,125,200 $9,075,200
FY 2022 $3,450,000 $3,000,000 $3,125,200 $9,575,200
FY 2023 $3,450,000 $3,800,000 $5,387,900 $12,637,900
FY 2024* $3,900,000 $13,600,000 $5,700,000 $23,200,000
FY 2025 $4,095,000 $14,280,000 $5,985,000 $24,360,000
FY 2026 $4,299,800 $14,994,800 $6,284,300 $25,578,100 * Effective in FY 2024 the transfer to Road and Bridge Fund 3081 includes funding for landscaped
median renewal and maintenance.
Issuing strategic variable-rate short-term and/or fixed-rate long-term debt is an important part of
the County’s capital improvement program. The program is based on the premise that future
residents should pay for improvements that they will enjoy, not just current residents. Further,
the County’s superior investment-quality credit rating provides an opportunity to lock in lower
interest rates.
Since October 2018, the County has issued $501 million in general governmental and enterprise
debt to fund several strategic initiatives, including:
• Series 2018 Tourist Development Tax bonds totaling $62.9 million dated October 2018 to
finance the construction of the Paradise Sports Complex.
• Collier County Water/Sewer District revenue bonds dated April 2019 in the amount of $76.2
million to finance the acquisition, construction, and equipping of various utility capital
improvements servicing the northeast area of Collier County.
• Strategic purchase in July 2019 of the Golden Gate Golf Course for $28 million through a
taxable competitive bank loan.
• Series 2020 A&B tax-exempt and taxable debt in the amount of $115 million dated October
2020 for strategic eastern lands property acquisition, construction of stormwater facilities,
and improvements to various park and recreation aquatic facilities.
• Collier County Water/Sewer District revenue bonds dated July 2021 in the amount of $128.9
million to finance the acquisition, construction, and equipping of various utility capital
improvements servicing the northeast area of Collier County and Golden Gate City.
• In June 2021, a $10 million commercial paper line of credit was authorized to finance Pelican
Bay infrastructure improvements.
• In July 2022, a $30 million commercial paper line of credit was authorized to finance a
portion of the Vanderbilt Beach Road Extension.
• In July 2023, a $50 million commercial paper line of credit to finance the construction of the
North Collier Water Reclamation Facility Pretreatment Facility and PUD Renewal Projects.
The following chart provides a summary description of General Fund transfer dollars programmed
for, FY 2022 through FY 2025. This table does not include debt service transfers or the annual
long-term capital reserve transfer.
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General Fund Supported Capital Category FY 22
Budget
FY 23
Budget
FY 24
Budget
FY 25
Budget
Medical Examiner Bldg. Expansion &
Repairs $0 $500,000 $2,200,000 $0
Jail Windows $0 $950,000 $500,000 $500,000
Jail & other Sheriff Facility Repairs $1,000,000 $1,000,000 $2,865,000 $5,822,000
Sheriff's Gun Range Facility $0 $0 $500,000 $0
Sheriff Helicopter Replacement $5,000,000 $0 $0 $0
Sheriff Identification System Replacement $0 $1,000,000 $0 $0
Sheriff's Substatiom #1 N Naples $0 $0 $400,000 $0
Sheriff Caxambas Seawall $0 $600,000 $0 $0
Voting Machines $0 $0 $0 $1,500,000
Strategic Land Purchases $0 $0 $0 $3,000,000
Clerk’s Annex Reorganization and Finance
Dept Relocation $735,000 $0 $0 $0
Financial Accounting System (SAP)
Upgrade $2,000,000 $1,000,000 $1,000,000 $100,000
Facilities Generators $0 $0 $0 $1,300,000
Golden Gate Golf Course $0 $7,000,000 $2,500,000 $0
DAS Facilities $0 $0 $0 $3,500,000
Relocation of Campus Facilities and
Office Operations $400,000 $0 $0 $0
University Extension $0 $0 $0 $482,000
Library – Update interior $0 $630,000 $0 $777,500
Library Capital/Books $500,000 $900,000 $1,000,000 $1,000,000
General Building Maintenance Repairs $5,000,000 $6,922,200 $8,000,000 $7,940,000
Major Projects & Roof Replacements $5,000,000 $0 $5,185,500 $19,974,700
Video Monitoring System replacement $2,188,400 $2,545,900 $0 $500,000
General Ops Business Park (GOBP) $0 $5,000,000 $0 $2,000,000
Great Wolf $0 $2,000,000 $5,500,000 $1,356,800
Paradise Coast Sports Complex $4,235,000 $4,000,000 $0 $0
800MHz Radio Hardening $0 $1,213,000 $6,000,000 $0
Other General Governmental ($1,079,800)* $657,500* ($267,200)* $750,000
Pool Pump Repair and Maintenance $0 $0 $0 $1,000,000
Field Lighting $0 $0 $0 $1,300,000
Museum Capital $200,000 $200,000 $200,000 $162,700
Park Capital $3,070,000 $3,177,500 $3,000,000 $3,150,000
Boater Improvement Capital $0 $428,300 $0 $0
Transportation Capital $8,817,300 $10,625,900 $9,200,000 $9,660,000
Storm-water Capital $2,677,800 $8,271,500 $2,800,000 $2,940,000
Total $39,743,700 $58,621,800 $50,583,300 $68,715,700**
* Other General Governmental - completed projects with residual funding were moved to Reserves to help fund projects
reducing the need for additional General Fund support.
** For comparative purposes the FY 2025 General Fund Support totaled $44.2 million. A year-over-year reduction in reserves, earned
interest exceeding budget, and project closeouts allowed for an additional $24.5 million in budgeted projects for FY 2025.
Planned direct general governmental infrastructure replacement/maintenance funding on a pay-as-you-
go basis for transportation, parks, and stormwater-related system improvements for FY 2026 under
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the current planning scenario totaling $42.1 million, an increase of 5% from FY 2025. The
remaining planned capital allocation earmarked for general governmental infrastructure
replacement/maintenance/capital improvement projects, including the constitutionals, totals $32.6
million. Allocations are subject to change as prioritization of the FY 2026 budget materializes
leading into the June workshop.
Management has the flexibility to allocate these General Fund and Unincorporated Area General
Fund transfer dollars to mission-critical projects or initiatives at the expense of those efforts not
viewed as a high priority. This has been and will continue to be the management strategy given
the competition for general government resources, uncertainty with the communication services
tax, heavy reliance upon property taxes, and the natural hazards that can impact coastal
communities.
Recommended Budget Policy: Develop a General Fund (0001) and Unincorporated Area General
Fund (1011) budget utilizing a priority-based budgeting approach. Recommended millage rates
will be calculated utilizing preliminary taxable value based on prioritized budget requirements
within established control lines. Program adjustments or funding realignment may result in
changes to the millage rates.
Use of Gas Taxes and Future Gas Tax Pledged Debt:
Gas tax dollars that align with the current gas tax ordinances and are not devoted to paying debt
service will be available annually to support/supplement maintenance on the roadway network.
Large-scale projects and others identified for completion in the five-year CIE between FY 2025
and FY 2029 have a projected shortfall of over $300 million. Funding strategies, including issuing
debt supported by gas tax revenues, are part of the long-term plan for transportation CIE funding.
Proceeds would fund identified Transportation system assets deemed “poor” in the inventory,
capacity improvements not funded by the Local Option Infrastructure Sales Tax, and expansion of
the eastern Collier County transportation grid. Large-scale projects identified in the five-year CIE
that could be financed include Collier Boulevard (Green Boulevard to Main Golden Gate Canal),
Vanderbilt Beach Road (16th Street NE to Everglades Boulevard), Goodlette Road (Vanderbilt
Beach Road to Immokalee Road), Wilson Boulevard (Golden Gate Boulevard to Immokalee
Road), and Everglades Boulevard (Vanderbilt Beach Road to Oil Well Road). Specific project
engineering schedules will be reviewed, and the Finance Committee will continue to refine the
concept and strategy.
Gas taxes collected in FY 2024 from all sources totaled $25.8 million. With the maturity of Gas
Tax Refunding Revenue Bonds, Series 2014, in June of this year, planned gas tax revenues will be
allocated for constructing and maintaining the transportation network consistent with strict
statutory guidelines.
Augmenting transportation network improvements budgeted in Gas Tax Fund (3083) are regular
general governmental transfers to Transportation Capital Fund (3081). The General Fund capital
and Unincorporated Area General Fund capital transfers planned for FY 2026 to Fund (3081) are
$10.1 million and $15 million, respectively, which represents an increase of 5% from the FY 2025
budget. These dollars support maintenance on the roadway network, including intersection
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improvements, resurfacing, sidewalks, pathways, medians, asset management, and traffic control
software, and other critical maintenance needs that are not eligible for gas tax funding by statute.
Recommended Budget Policy: Apply gas tax revenue for construction and maintenance of the
transportation network in accordance with statutory guidelines and utilize transfer dollars from the
General Fund and Unincorporated Area General Fund to support and supplement maintenance of
the roadway network.
General Fund Budget Allocations by Agency and Component
The purpose of this allocation is to identify those agency appropriation components within the
General Fund. All agencies work diligently with the County Manager in support of budget policies
adopted by the Board. Equally important is the premise that all agencies would share in any budget
reductions necessitated by new state tax reform initiatives, reductions in state shared revenue, and
unfunded mandates.
Considering that planned transfers to the Constitutional Agencies in FY 2025 account for 49% of
total General Fund budgeted expenses and 71% of the General Fund ad valorem budgeted revenue,
their participation in any necessary reductions due in part to unexpected ad valorem revenue
shortfalls, tax rate reductions or unforeseen unfunded mandates is essential.
It should be noted that these expense percentages are gross figures and do not account for
statutorily required year-ending constitutional officer turnback. This turnback revenue is budgeted
and forecast conservatively each year. Constitutional turnback revenue was $15.1 million and
$16.8 million across all funds for years ending FY 2023 and FY 2024, respectively. The General
Fund receives, on average, 91% to 96% of all turnback revenue.
Recommended Budget Policy: Continue this policy.
BCC / Co
Attorney 3%County
Managers
Agency 28%
Road Program
Subsidy 1%
Debt / Capital
Subsidy 7%
Reserves 11%
Courts 1%
Clerk of Courts
2%
Property
Appraiser 2%
Sheriff 40%
Supervisor of
Elections 1%
Tax Collector 4%
FY 2025 General Fund Planning Budget
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Storm-Water Management Funding
The budget planning model for FY 2026 allocates $20.5 million from the General Fund and
Unincorporated Area General Fund toward cash and carry storm-water infrastructure replacement
($9.3 million); maintenance and operations ($9 million); and annual debt service on the November
2020 Special Obligation Revenue Bond Series A $60 million stormwater component ($2.2
million). Annual debt service will reduce the cash and carry capital allocation. Project engineering
and capital implementation is ongoing to spend down bond proceeds on strategic projects intended
to update the County’s stormwater system.
Recommended Budget Policy: For FY 2026, continue general governmental funding for storm-
water maintenance and operations; cash and carry capital transfers and debt service from the
General Fund and Unincorporated Area General Fund with the component funding identified
above.
Millage Targets for Collier County MSTU’s, MSTD’s
A Municipal Service Taxing Unit (MSTU) is a mechanism by which a county can fund a service
from a levy of ad valorem taxes, not countywide, but within all or a portion of the county. In the
County budget, an MSTU is used to segregate the ad valorem taxes levied within the taxing unit
to ensure that funds derived from such levy are used to provide the contemplated services within
the taxing unit's boundaries as required.
MSTUs are created by ordinance, and generally, there are provisions governing the maximum
millage rate that can be levied. Local ordinances control millage rates, even if the rolled-back rate
exceeds the ordained millage cap.
Twenty-four (24) MSTUs are active under Collier County’s taxing umbrella.
Recommended Budget Policy: For FY 2026, it is suggested that MSTUs be limited to a millage
rate sufficient to cover current budget year operations and planned annual capital program
allocations.
Revenue-Centric Budgets
It is generally recognized that all budgets and expense disbursements, regardless of fund or
activity, are revenue and cash dependent. This concept establishes that enterprise funds, internal
service funds, certain special revenue funds, and other operational funds that rely solely on fee-
for-service income with zero reliance upon ad valorem revenue should be allowed to establish
budgets and conduct operations within revenue-centric guidelines dictated by cash on hand and
anticipated receipts.
For FY 2026, revenue-centric budget parameters for enterprise operations will be tied to working
capital guidelines established by GFOA; capital obligations from the capital improvement element
(CIE); any rate or fee studies stipulations; priority agency-wide expansion initiatives; and statutory
or ordinance spending limitations. A critical review of operating and capital reserve levels versus
operating and capital appropriations will be discussed during County Manager budget
deliberations with an expectation that enough recurring resources are devoted to maintaining the
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assets at a high standard while resources are set aside to protect cash and fulfill our fiduciary
responsibility to public protection in the event of a natural disaster.
This concept also presumes continual monitoring of cash and receipts and, if necessary, subsequent
operational adjustments dictated by cash flow. Therefore, general governmental departmental
spending guidance will not apply.
Certain cost centers or functions have a net cost to the General Fund (0001) or Unincorporated
Area General Fund (1011). In these instances where fees for services offset the ad valorem impact,
the budget reduction guidance should account for this positive impact upon the net cost to the
General Fund (0001) or the Unincorporated Area General Fund (1011). Under this revenue-centric
approach, Departments will be held to their fee-for-service projections. Negative fee variances will
be addressed through expenditure cuts and not subsidized by Ad Valorem taxes. Department
Head/Executive Director discretion upon guidance by the County Manager should be afforded in
these scenarios.
Recommended Budget Policy: Adopt this Enterprise Fund and General Governmental revenue-
centric budget policy.
Mission Critical Program Enhancement (Expanded) Requests
For FY 2026, Departments will carefully consider program enhancement requests given ongoing
elevated vacancy rates and operating expenditure guidance that will likely require a significant re-
prioritization of the current budget. All program enhancement requests will be limited to new
capital facility openings, priority-based service level adjustments, and/or historically strained
mission-critical imperatives. These program enhancement requests must identify the strategic
focus area(s) and strategic objective(s) that are being satisfied and will include incremental millage
requirements if supported by ad valorem taxes.
The county manager will consider all budget-to-budget requests, including incremental capital
projects, and recommendations will be presented during the June FY 2026 priority-based budget
workshop discussions.
Recommended Budget Policy: Expanded requests will be limited to Board-approved capital
facility openings, priority-based service level adjustments, and/or historically strained mission-
critical imperatives with final County Manager recommendations presented at the June budget
workshop.
Compensation Administration
The philosophy of Collier County Government is to provide a market-based compensation
program that meets the following goals:
• Facilitates the hiring and retention of the most knowledgeable, skilled, and experienced
employees available.
• Supports continuous training, professional development, and enhanced career mobility.
• Establish and maintain equity in the pay plan and rates paid to incumbents in those
positions.
The Consumer Price Index 12-month percent change from December 2023 to December 2024 is
2.8% for the Miami-Fort Lauderdale area. The inflation index is generally expected to stabilize
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during the next 12 months. This is one of the indices that Collier County traditionally uses when
considering a general wage adjustment. The annual Florida Relative Price Index, an index
comparing the relative cost of living among the State’s 67 counties, is also used as a basis for
compensation plan recommendations. The most recently published Florida Relative Price Index
lists Collier County as having the highest relative cost of living among the 67 counties in the State.
In consideration of current market conditions, for FY 2026 the County Manager is recommending
a 2.5% increase to base salaries within each paygrade classification, and an additional 0.5%
allocation is recommended to strengthen certain targeted classification pay grades where market
imbalances exist. Given the current average salary in the County Manager’s Agency is $68,770,
the collective recommended pay adjustments would result in an average of $2,063 per employee.
Recommended Budget Policy: Allocate funds equivalent to a 2.5% base wage increase for all
classifications, along with a 0.5% pay plan maintenance component to enhance certain targeted
classification pay grades where market balance is present. The total cost for the County Manager’s
Agency, including FICA and retirement, is approximately $5.7 million for FY 2026. In previous
years, the Board of County Commissioners has approved adjustments to the compensation plan,
as detailed in the following table:
Program
Component
FY
16
FY 17 FY 18
FY 19 FY 20 FY 21 FY 22 FY 23 FY24 FY25 FY26
General Wage
Adjustment
1.50% /
$1,000
3.00% 2.90% 2.00% $1,200
represents
an average
of 2.2%
Greater of
$1,200 or
2.00%
$1,000 @
10/1/21;
$1/HR
@8/1/2022
8% Staff;
6.5%
Directors;
5% Dept.
Head and
Above
5.00% 3.00% 2.5%
Incentive /Pay
Plan Maintenance
1.50% 0.00% 0.60% 0.00% 0.50% 0.80% Avg. 8.5%
@1/1/22
0.00% 2.0% 2.0% 0.50%
Total 3.00% 3.00% 3.50% 2.00% Average of
2.7%
Average of
2.8%
Average of
≈12.5%
See Above Average of
7%
Average of
5%
Average of
3%
Health Care Program and Cost Sharing
The County Health Care Program is self-funded and seeks to operate the health plan with the same
diligence as a small insurance company. Like an insurance company, the County faces a
significant budget risk within the health plan due to the unpredictability of claim cost variances.
Such variance is normal statistically and is rooted in the fact that total medical costs are extremely
sensitive to the number of claimants who experience catastrophic losses. The expected number
and size of large claimants is extremely random and volatile. To manage and prevent this
variability, the County reinsures catastrophic losses and maintains a prudent reserve to comply
with Florida Department of Insurance requirements as well as to protect the General Fund from
this volatility.
As of January 2025, 86% of the BCC population has elected health insurance coverage.
There are several goals that guide how the County operates the plan within the small insurance
company context. These are:
1. Comply with all legal and regulatory requirements for plan operation.
2. Maintain overall controllable expenses, reinsurance costs, network fee arrangements, and
reserves at prudent levels.
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3. Protect our employees from the economic impacts of illness or injury.
4. Prevent illness and stabilize chronic health states, when possible, by helping our
employees and their spouses become aware of their health, and act on that knowledge.
Although the goals have been met, medical plan costs and the premium dollars required to fund
them continue to increase annually. The County’s medical plan has been impacted by these rising
costs, and as a result, there are two main challenges regarding the rates set forth in the health plan:
1. 1. Current county and employee contributions to the fund will not be sufficient to cover
projected future costs.
2. 2. Although current reserves likely exceed what would be considered reasonable and have
been utilized to address past shortfalls in contributions to the fund, without changes in rates,
reserves may drop below the required minimums by FY 2026.
Assuming a 6.7% inflationary trend for health care costs, if rates are not increased, the fund reserve
will be exhausted sometime during FY 2026 and the shortfall would be approximately $13 million.
The need for a dramatic rate increase may be avoided by modest action taken in FY 2026.
Therefore, it is recommended that there be a 9% program rate increase for FY 2026. This
increase would be the third consecutive annual increase required for multi-year program
stabilization. Trends will be analyzed annually with the goal of adjusting rate structures to ensure
coverage of plan cost and maintenance of a reserve level that includes statutory reserves plus an
amount to cover cost variances with 99% certainty. If deemed necessary, a one-time fund-level
allocation may be recommended to supplement the recommended program rate increase. It should
be noted that employer health insurance contribution increases are absorbed within operating
appropriations. The 9% increase will result in approximately $2.8 million in employer
contributions across the County Manager’s Agency. Employees under non-smoker employees will
see bi-monthly cost increases between $5 and $9 for single coverage and $14 and $21 for family
coverage. Smokers will see bi-monthly cost increases between $10 and $16 for single coverage
and $18 and $29 for family coverage.
Since 2009, Collier County Government has invested in processes to heighten employees' and
spouses’ health awareness and make available resources to assist covered employees and spouses
in improving and maintaining their health. These programs have significantly reduced risk and
improved outcomes for the covered participants. Employees and spouses have embraced the
County’s preventive educational and qualifier processes which have contributed greatly toward
the financial strength of the health program. Over the last 15 years, participation has been
consistently more than 90% for those meeting the necessary qualifiers. This rate far exceeds those
of large employers nationwide.
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With the objective of mitigating necessary plan increases, the County will continue to emphasize
participation in the existing wellness program, proper structuring of reinsurance to manage adverse
plan impacts, and prudent plan management.
Coverage under the Plan extends to all eligible County employees except for the Sheriff’s Office,
which operates its own self-funded plan.
Recommended Budget Policy: In FY 2026, a 9% rate increase to the existing rate structure is
recommended. Additional one-time fund-level contributions may be recommended to supplement
based on current fiscal year program performance. This program rate increase will result in an
employer portion funding increase of approximately $3 million for the County Manager’s Agency.
Bi-monthly employee cost increases will be between $5 and $9 for single coverage and $14 and
$21 for family coverage. Smokers will see bi-monthly cost increases between $10 and $16 for
single coverage and $18 and $29 for family coverage.
Retirement Rates
All agencies, including Constitutional Officers, must use the retirement rates published within the
CFMS budget instructions. CFMS monitors all proposed bills. The legislature usually establishes
the new retirement rates at the beginning of May, with the Governor signing the bill into law at
the end of May. The preliminary retirement rates published in the instructions are based on
proposed Bills (Florida Statute Chapter 121).
Recommended Budget Policy: Adherence to the CFMS rates published within the CFMS budget
instructions.
Accrued Salary Savings
When employees leave, they are generally replaced, and the replacement process takes varying
lengths of time, depending on the position being recruited. This fact, coupled with the full
budgeted amounts for health insurance and workers’ compensation being transferred to the self-
insurance funds, impacts the amount of accrued salary savings due to position vacancies. A 2%
attrition rate has been utilized since FY 2016. For FY 2026, the rate is suggested to remain at 2%.
Recommended Budget Policy: Continue the accrued salary savings policy at a 2% rate.
Financing New and Replacement Capital Infrastructure
The issuance of debt for capital improvements is generally considered a good alternative to pay as
you go under the philosophy that future taxpayers who will also enjoy the capital improvements
should participate in funding capital improvements rather than that burden falling solely on
existing taxpayers. Further, the County’s superior investment quality credit rating, a revenue-to-
debt service ratio well below the self-imposed cap of 13%, and not raising the millage rate to pay
debt service for world-class capital amenities provide further rationale for issuing strategic debt.
Total unaudited general governmental and enterprise principal debt outstanding on 9/30/24 was
$606.9 million, including commercial paper draws through FY 2024. Debt outstanding reached a
high of $788 million in FY 2008.
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Pursuant to the Collier County Debt Management Policy, several guiding principles have been
identified that provide the framework for the issuance, management, continuing evaluation, and
reporting of all debt obligations issued by the County.
Asset Life: The County will consider long-term financing for the acquisition, maintenance,
replacement, or expansion of physical assets (including land) only if they have a useful life of at
least five (5) years. Debt will be used only to finance capital projects and equipment, except in
case of emergency. County debt will generally not be issued for periods exceeding the useful life
or average useful lives of the project or projects financed.
Capital Financing: Debt of longer amortization periods will be issued for capital projects when it
is an appropriate means to achieve a fair allocation of costs between current and future
beneficiaries. Debt shall not generally be used for projects solely because insufficient funds are
budgeted at the time of acquisition or construction.
To the degree possible, the County will rely on specifically generated funds and/or grants and
contributions from other governments to finance its capital needs on a pay-as-you-go basis. To
achieve this, it may become necessary to secure short-term (not exceeding 5 years amortization)
construction funding. Such financing is anticipated and allows maximum flexibility in CIP
implementation.
A decision to issue some component of short or long-term debt is based upon the level of service
standards, the timing of any capital improvement, the ability to execute, the credit market
environment, and the cost of capital. The County has historically pursued a strategy of incurring
short-term commercial paper loans for capital projects and refinancing that short-term debt with
longer-term bonds or other long-term credit instruments that match the asset’s useful life. Short-
term commercial paper loans carry a low variable interest rate – with the January 2025 all-in rate
currently at 4.16%. Typically, funding can be accessed within about 30-45 days of approving the
authorizing resolution.
The advantage of long-term competitively issued bonded debt, especially in a low-interest rate
environment, is that budget certainty for the cost of credit is achieved. Generally, a project should
be ready for construction and proceeds must reasonably be expected to be spent within a three-
year window from debt issuance, or adverse tax consequences may occur. Long-term bonded debt,
or in the alternative, competitively issued bank loans can be issued normally within a ninety (90)
day window. The County’s current general governmental long-term debt portfolio is comprised of
special obligation revenue bond debt under a covenant to budget and appropriate all legally
available non-ad valorem revenue. This type of long-term debt is anticipated to be used under
future new general governmental debt credit scenarios.
The County is always positioned to add new strategic debt to the portfolio after embarking upon
an aggressive debt restructuring program in the summer of 2010, and to date, over $531.2 million
in general governmental debt has been refinanced. As a result, the cost of borrowing has been
reduced by $3.1 annually, with these recurring savings applied toward high-priority pay-as-you-
go operating and capital programs. Annual principal and interest payments servicing outstanding
general governmental and enterprise debt totals $66.6 million and represent 3.2% of the County’s
net adopted FY 2025 budget. The County continually looks for strategic and economically
feasible debt restructuring opportunities.
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The County’s finance committee and financial advisor regularly evaluate the debt portfolio
for opportunities to generate savings through debt restructuring.
Countywide capital allocations have traditionally included new money components for general
governmental capital projects and maintenance and replacement of existing general governmental
infrastructure.
Immediate Term New Debt Strategy: New debt will be considered as projects are engineered and
progressing in the following circumstances:
• FY 2025 financing, in the amount of $162 million, to construct the 4 MGD Central Collier
Water Reclamation Facility (Golden Gate) and required deep injection well. Additional
anticipated financing included in the upcoming 10-year planning cycle includes: $277
million in FY 2027 to construct the 4 MGD Northeast Water Reclamation Facility, $234
million in FY 2029 to construct the 10 MGD Northeast Water Treatment Plant, as well as
$66 million in FY 2035 for growth-related pipelines.
• General Sheriff and Public Safety replacement capital improvements based upon a phased
prioritized schedule.
• Any gap financing to complete additional Paradise Coast Sports Complex phases.
• Gas Tax transportation network improvements.
The following illustrates various long-term financing scenarios, the annual debt service, and the
respective interest rates.
Recommended Budget Policy: No financing strategy is suggested to be built into the FY 2026
adopted budget. However, the Finance Committee should continue to work with the County’s
various agency department stakeholders regarding project scope, timing, and execution patterns
and with our debt issuance team to develop a strategy and be ready to pursue a debt issuance plan
based on Board direction.
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General Fund General Capital/ Debt Service Contribution
The following table identifies how General Governmental County-Wide Capital contributions
appropriated within the General Fund were programmed in FY 2025 and planned in FY 2026.
General Fund transfers to Stormwater and Transportation System improvements are accounted for
separately and are not included in this General Capital programming scenario.
General Appropriation FY 2022 FY 2023 FY 2024 FY 2025
FY 2026
Non-Growth Debt Service $8,908,000 $7,774,700 $7,957,100 $7,769,400
$8,080,000
Impact Fee Trust Fund
Investments 1,832,000 757,700 1,383,900 1,700,700
2,124,100
General Governmental
Capital Projects 20,743,600 29,918,600 29,883,300 36,902,400
27,276,100
Park, Museum, Airport,
Sport Complex Transfers 7,505,000 9,805,800 3,200,000 3,312,700
3,478,300
Future Capital
Replacement/Maintenance
Reserve
7,500,000 18,300,000 21,667,300 7,617,100
5,000,000
Total $46,488,600 $66,556,800 $64,091,600 $57,302,300
$45,958,500
Planned contributions in FY 2026 represent a decrease from FY 2025 levels, and this allocation
may change depending on the Board’s priority-based budget allocations, Board-adopted
operational service level changes, or other reprioritized initiatives.
Total investment to the impact fee trust funds (i.e., EMS, Libraries, Corrections, Law Enforcement,
and General Government Facilities) from the General Fund since inception (FY 2005) through
planned FY 2026 totals $106.2 million. In the future, the level of General Fund investment will be
heavily dependent upon the level of impact fee collections and any new eligible growth-related
general governmental capital projects planned in the areas identified above that the Local Option
Infrastructure Sales Tax does not pay. Current general governmental growth debt, which is paid
predominately from impact fees, expires in FY 2036.
General Fund loans to the Airports began on or about FY 1995, and to date, various operational
and capital subsidies total $27.8 million. In recent years, loans have not been necessary to subsidize
operations or support capital, and the Airports have been making modest annual repayments to the
General Fund.
Debt payment is always a top priority. Under the FY 2026 budget planning scenario, the dollars
allocated will cover all revenue bond debt service.
The principal and interest payments servicing all outstanding County debt (including enterprise
debt) total $66.6 million and represent 3.2% of the County’s net adopted FY 2025 budget. General
governmental debt service represents 2.0% of the County’s net adopted FY 2025 budget. The
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following charts depict annual debt service payments servicing all debt and annual debt service
connected with our general governmental credit.
Collier County’s total unaudited principal debt outstanding as of 9/30/24 totals $606.9 million, of
which $313.8 million is general governmental and $293.1 million is enterprise-related debt. The
County’s principal debt is $181.1 million below the FY 2008 figure of $788 million.
Recommended Budget Policy: Continue General Fund countywide capital contribution to pay
non-growth-related revenue bond debt; provide investments to impact fee funds to cover growth-
related debt obligations; and fund continuing general governmental priority capital needs.
General Governmental, Enterprise Fund, and Other Fund Reserve Policies
General Fund: Reserve is a budget/policy term referring to resources set aside to provide a
financial barrier against risk. Likewise, reserves may also be referred to as a portion of fund
balance – only on the expense side of the equation. Reserves are the cornerstone of financial
flexibility and provide the government with options for responding to unexpected issues and a
buffer against shocks and other forms of risk. One such unplanned risk may, for example, include
the potential for a grant award to be rescinded after work on the activity begins.
Grant revenues are appropriated at the time of award with the expectation of future cash inflows
from the grantor agency. Until reimbursements are received, the General Fund and General Fund-
supported agencies provide the cashflow for most general governmental grant-funded activities
and are responsible for financing grant-related activities in full should the County default on any
grant provisions or a grantor agency cancel, revoke, or de-obligate an award.
It is essential for governments to maintain adequate levels of fund balance to mitigate current and
future risks, such as revenue shortfalls, natural disasters, and unanticipated expenditures. As such,
budgeted reserves serve to protect the beginning cash position in a fund and are an essential
component of Collier County’s overall financial management strategy and a key factor in external
agency measurement of Collier County’s financial strength.
Various bond rating agencies recognize that the best reserve policies provide both specificity and
flexibility, accomplishing one or more of at least the following three criteria:
• establishing a target level of reserves or a reserve floor
• specifying the appropriate circumstances for drawing down reserves
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• directing the replenishment of reserves
In general, rating agencies view higher reserve levels positively, although local governments can
maintain high credit ratings with lower reserve levels if other indicators of financial flexibility,
such as revenue-raising ability, stable, diverse revenue structure, expenditure flexibility, and
conservative budgeting practices, are strong.
A reserve for contingency is typically budgeted in all operating funds except for the Constitutional
agency funds. Reserves for the Constitutional Agency funds shall be appropriated within the
County General Fund.
The following is a history of budgeted reserves within the General Fund and Unincorporated Area
General Fund since FY 2015 and the percentage of reserves against total operating expenses.
Fiscal Year General Fund
Reserves
Unincorporated Area
General Fund Reserves
% of General
Fund Expenses
% of Unincorporated
GF Expenses
2026 Planned $79,622,200 $6,681,800 12.5% 8.2%
2025 $77,562,800 $6,187,700 12.5% 7.9%
2024 $72,190,100 $6,759,700 11.7% 8.7%
2023 $68,366,400 $4,722,800 12.1% 6.6%
2022 $64,856,900 $4,189,100 13.7% 6.7%
2021 $56,798,900 $2,695,500 12.8% 4.4%
2020 $51,532,900 $2,340,600 12.1% 3.9%
2019 $44,481,200 $2,982,300 11.4% 5.3%
2018 $40,450,300 $3,255,000 10.8% 5.5%
2017 $33,899,700 $2,432,900 9.6% 4.8%
2016 $27,890,800 $1,905,600 8.4% 4.4%
2015 $26,670,700 $2,220,100 8.5% 5.6%
Optimally, and to achieve a regular and sustained General Fund beginning fiscal year cash
position, budgeted reserves should be a minimum of $70.5 million. Otherwise, expense-side
budget management in the form of capital transfer reductions and/or reductions in operating
transfers may become necessary.
Budget management is always ongoing and more magnified when Hurricane events occur.
Expenditures and revenues are monitored continually, and any budget adjustments are made
accordingly. Likewise, execution patterns and transfer dollars, specifically out of the General
Fund, are scrutinized to ensure that appropriations are properly executed and spent for their
intended purpose.
Florida State Statutes: Budgeted reserves shall conform to the requirements of Florida State
Statutes in all respects. The State establishes maximum limitations on certain reserves. The
maximum limitations for contingency reserves and cash flow reserves are 10% and 20% of a fund’s
total budget, respectively. There is no statutory limit on capital reserves.
Recommended Budgeted Policy Reserve Position for the General Fund: The Government
Finance Officers Association (GFOA) recommends setting General Fund reserves at 16% of
regular operating revenues or 2 months of regular operating expenses as a baseline or floor. Based
on FY 2026 planned budget numbers, this would put Collier County's general fund reserve floor
(minimum) in the $102M-$106M range.
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Collier County has never attained a General Fund budgeted reserve position higher than the FY
2026 proposed position of $79.6 million. This reserve position includes a contingency reserve level
of 3% of operations. While Collier County is vulnerable to extreme weather events, given its
coastal location, its revenue sources are relatively stable, and expenditure patterns are not volatile.
Further, the General Fund budget is flexible, with FY 2026 planned capital transfers representing
9.5% of appropriations. In addition, the County’s total all-funds reserve position is stable and will
be used partly to cash flow a significant weather event or other natural disaster. These factors
suggest a less aggressive reserve position with a floor or minimum of 8% of operating revenues
and a ceiling or maximum not to exceed 16% of operating revenues. Applying these percentages
to our current FY 2026 proposed planning budget, the reserve floor and ceiling would total $50.8
million and $101.6 million, respectively. FY 2026 planned reserves within the General Fund fall
within this range.
Reserves that drop below the targeted floor (minimum) would be replenished in succeeding budget
cycles in amounts deemed prudent under existing economic conditions, as approved by the Board.
The goal will be to recover at least 25% of the reserve shortfall in year one, 25% in year two, and
the remaining shortfall in year three.
Recommended Budgeted Reserve Position for Other General Governmental Funds,
including the Unincorporated Area General Fund: The Unincorporated Area General Fund is
primarily an operating fund. While capital transfers have increased over the past few years, the
Unincorporated Area General Fund and, for that matter, other general governmental funds do not
have nearly the cash flow requirements of the General Fund. Thus, the reserve target for the
Unincorporated Area General Fund should be 8.3% of operating expenses or approximately one
month’s expenses, which for planning FY 2026 is approximately $6.8 million.
Reserve requirements for other General Governmental Funds, including those that receive
significant transfer revenue from the General Fund, will be sized to cover operations during the
first month or until the first General Fund transfer is scheduled pursuant to the CFMS Transfer
Schedule.
Reserves Policy Position for the Motor Pool Replacement Family of Funds (4009, 4072, 4051,
5023)
The Motor Pool Replacement Funds were re-established in FY 2016. The Reserve will be funded
annually through an annual billing to the applicable user Divisions in an amount equal to the future
cost of the vehicle divided by its useful life.
In FY 2016, the Motor Pool Replacement Fund was established for the various General
Governmental Funds (5023), Water/Sewer District (4009), and Solid Waste (4072).
In FY 2017, the balance of user Divisions, EMS (4051) and Road and Bridge/Stormwater (Funds
1001 and 1005/5023) were included in the appropriation plan.
Reserves within the four Motor Pool Replacement Funds maintain a current replacement reserve
(reserve for future capital) equal to a minimum of two (2) years’ estimated replacement cost of
vehicles currently in service.
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Reserve Policy Position for the Pelican Bay Services Division Family of Funds (1007, 1008,
3040, and 3041).
Operating Reserves Fund (1007) – It is recommended that the fund’s reserve position be
established at between 15% and 30% of operating expense. This is particularly important given
the districts coastal nature, level of infrastructure investment, natural assets, and commitment to
maintenance and resource protection.
Street Lighting Fund (1008) – The level of reserves in this fund will be established in such amounts
necessary to set aside funding to accomplish lighting projects consistent with the Pelican Bay
Community Improvement Plan.
Capital Project Funds (3040 & 3041) – Reserve levels are generally minimal with most budgeted
dollars appropriated within defined and active projects.
Reserve Policy Position for Enterprise Funds, including the Collier County Water-Sewer
District Fund (4008, 4012, 4014) and the Solid and Hazardous Waste Management Funds
(4070, 4071, 4073, 4074).
General: According to the GFOA, it is essential that a government maintain adequate levels of
Reserves in its enterprise funds to mitigate current and future risks like revenue shortfalls and
unanticipated expenses and to ensure stable services and fees.
Collier County Water-Sewer District (CCWSD) Funds 4008, 4012, and 4014: Like a General Fund
reserve, a utility system reserve position may be measured as a percent of regular revenues or
regular expenditures, depending on the predictability or volatility of each.
The Collier County Water-Sewer District (CCWSD) reserve policies should be based on sound
fiscal principles designed to enable the utility to maintain continuity of operations in adverse
conditions and avoid user rate shock (rate stabilization).
In addition, various bond rating agencies, particularly Fitch Ratings, recognize that the best reserve
policies provide both specificity and flexibility, accomplishing one or more of at least three main
criteria:
• Establishing a target level of reserves,
• Specifying the appropriate circumstances for drawing down reserves, and
• Directing the replenishment of reserves
For enterprise funds, the GFOA recommends starting with an assumption of 90 days and adjusting
based on relevant risks, with 45 days as a bare minimum. It recognizes the difference between
enterprise funds supported by the general government and those that are not.
The utility system, with gross assets exceeding $1.7 billion, should maintain a reserve position
necessary to ensure the maintenance of life-sustaining services to the public during non-routine
and unforeseen disaster situations such as hurricanes or other related weather events, other
environmental or natural disasters, or other events that cause disruptions in public services, such
as system failures and line breaks.
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Collier County lies within a coastal zone highly susceptible to hurricane and storm damage to
water and sewer treatment facilities, transmission lines, and distribution/collection mains. Many
buried water and wastewater lines sit in sandy soil prone to shifting during heavy rain
events. Uncertainty in economic markets regarding the cost of construction materials, interest
rates, personnel, and health costs add to the utility's risk factors. In the CCWSD, user fee revenue
supports the operating budget and the capital repair and rehabilitation program for the horizontal
(in-ground) and vertical (above-ground) assets.
Reserves can be classified as either “restricted” or “unrestricted”:
• Restricted Reserves - are those established for specific purposes only, such as debt
reserves required by bond covenants and/or reserves for growth in the impact fee
funds, which can be utilized only for growth projects.
• Unrestricted Reserves – are available to ensure continuity of services as identified
above.
Unrestricted reserves in the CCWSD include general contingencies reserves (i.e., “rainy day”
significant unforeseen events), cash flow reserves in the event of revenue disruptions, or capital
reserves for necessary but unforeseen repair and rehabilitation projects.
Recommended Reserve Policy for the CCWSD: At a minimum, the unrestricted reserves should
be budgeted within a range of 5% to 15% of budgeted revenues (revenues are stable but may be
subject to temporary disruptions from hurricanes or natural disasters), or within a range of 45-90
days of budgeted operating expenses (operating expenses are more volatile given aging utility
infrastructure and unforeseen events). Unrestricted reserves in Fund (4008), (4012), and (4014)
for FY 2025 total $38.8 million, which represents 54 days of operating and capital.
Replenishment of unrestricted reserves that may drop below the targeted floor (45 days) would
occur in succeeding budget cycles in amounts deemed prudent under existing economic conditions,
as approved by the Board.
Solid and Hazardous Waste Management Enterprise Funds 4070, 4071, 4073, and 4074: The
Solid and Hazardous Waste program in Collier County includes the operation of the solid and
hazardous waste disposal program, the recycling program, and the management of the mandatory
residential curbside collections program. These funds also include both restricted capital reserves
(Fund 4071 for landfill closure and disaster debris mission) and unrestricted operating and capital
reserves. The department is responsible for the right of way disaster debris removal on County
roads and monitoring projects for Collier County in the event of a natural disaster, such as
Hurricane Ian (Category 4, wet storm cash flow exposure of up to $45 million) event in the 4th
quarter of 2023 and the Hurricane Irma (Category 3, dry storm cash flow exposure up to $65
million) event in the 4th quarter of 2017.
As such, the Solid Waste Division should maintain unrestricted reserves of 45 to 90 days of
operating expenditures to ensure the maintenance of ongoing health and safety services to the
public during non-routine and unforeseen disaster situations such as hurricanes and other weather-
related events, as well as other environmental or natural disasters that cause disruptions in public
services.
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Further, due to the magnitude of the impact that Collier County experienced in the Right of Way
debris mission following Hurricanes Ian and Irma, a restricted cash flow reserve equivalent to 10%
of solid waste revenues as a bare minimum should be funded to be used solely for upfront cash
needs that accrue with significant natural disasters. This amount should begin to approximate
reimbursements that would not be forthcoming from FEMA and the State of Florida (typically
12.5% of the cost of the debris removal mission). Such a restricted reserve balance mitigates the
need to borrow from other Enterprise Funds and/or the General Fund while awaiting
reimbursements from FEMA and the State.
Recommended Reserve Policy for the Solid and Hazardous Waste Enterprise Funds:
FY 2025 unrestricted reserves for the Solid and Hazardous Waste Management Enterprise Funds
(4070), (4073), and (4074) total $14.7 million or seventy (70) days of reserves.
Replenishment of unrestricted reserves that drop below the targeted floor (45 days) would occur
in succeeding budget cycles in amounts deemed prudent under existing economic conditions, as
approved by the Board.
Allocate a minimum of 10% of the FY 2025 budgeted charges for services for future disaster
response. The division is rebuilding its disaster response fund after Hurricanes Irma and Ian. The
FY 2025 transfer for disaster response totaled $7 million.
Growth Management Division (GMD) - Planning & Regulation Enterprise Fund (1013) and
Development Services Enterprise Fund (1014):
Fund (1013), referred to as the Building Department Fund, collects revenues primarily related to
building permit activities, including building permits, structural, electrical, plumbing, and
mechanical inspections, plans reviews, and the licensing and oversight of building contractors.
GMD Building Permit Fund (1013) Recommended Reserve: The targeted reserve for this fund
is three months of the total budgeted expenses of the current fiscal year.
The Growth Management Division/Planning & Regulation Fee Schedule, adopted by resolution of
the Board of County Commissioners, provides guidelines for implementing fee adjustments if total
reserves rise or fall below established thresholds.
The Land Development Services Fund (1014) collects revenues primarily related to land
development permit activities, including planning and zoning, engineering, and environmental and
natural resources.
GMD Planning Fund (1014) Recommended Reserve: Targeted reserves for this fund shall be 9
months of the total budgeted expenses of the current fiscal year. The extra 6 months of targeted
reserves required compared to Fund (1013) reflects the unpredictable nature and length of
processing time for land development-related activities.
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Internal Service Fund Reserves
Reserves for Internal Service funds reflect amounts that are intended for and must be used to meet
a specific purpose.
The restriction can be set by legal agreement, statute, regulations, and/or mandatory reserves. For
purposes of this policy, emphasis is placed on the risk management group of funds and information
technology.
Recommended Policy: Establish cash flow for the Internal Service Funds, using a benchmark of
90 days of the prior year’s working capital.
Contingency reserves represent amounts available for appropriation by the Board to meet any
lawful, unanticipated need of that fund. Florida Statutes limit these reserve amounts to 10% of the
fund's total appropriations.
Collier County is self-insured and is subject to mandatory reserves for losses. Each year, an
actuarial study is completed for each of the County’s self-insurance funds, and the present value
of all outstanding losses is determined.
A margin based on a confidence interval is then added to this base amount to ensure that the
estimate is adequate to meet future claim payments. The Board of County Commissioners has
traditionally adopted a 75% confidence interval, as contained within the budget policy.
The Group Life and Health Insurance Fund within Risk Management has additional statutory
reserve requirements calculated each year and added to the restricted reserve category. In addition,
reserves will include an amount equal to at least the expected variance with 99% certainty.
The Information Technology Capital Fund’s restricted reserve amounts are determined by the total
number of committed capital projects in progress at the end of the year. Once the projects are
completed, any remaining funds may be re-appropriated. Designated reserves are established to
provide funds for a specific purpose where the actual cost is unknown.
Suggested Scheduling Timeline
Decisions Required Staff Adopted Date(s)
Establish Budget Submission Dates for
the Sheriff, the Supervisor of Elections,
and the Clerk of Courts
May 1, 2025 (Thursday), by Resolution
FY 2026 June Priority-Based Budget
Workshops
(BCC Agency/Courts and Constitutional Officers Budget Workshops)
June 19, 2025 (Thursday) and if necessary, June 20, 2025 (Friday)
The FAC Conference is June 24 – June 27, 2025, in Orlando/Orange
County.
Adoption of Tentative Maximum FY
2026 Millage Rates
July 8, 2025 (Tuesday)
Submission of Tentative FY 2026
Budget to the Board
July 11, 2025 (Friday)
Establish Public Hearing Dates (see note) September 4, 2025 (Thursday at 5:05 pm)
September 18, 2025 (Thursday at 5:05 pm)
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Note: The School Board has priority in establishing public hearing dates for budgets. The School
Board’s final budget hearing is tentatively scheduled for Tuesday, September 9, 2025.
The Commission chambers are reserved for the tentative dates for Collier County Government
budget public hearings.
Recommended Budget Policy: Approve the dates identified above and the attached resolution
establishing May 1, 2025, budget submittal dates for the Sheriff, the Supervisor of Elections, and
the Clerk.
Continuing Routine Budget Policies for FY 2026
Grant-Funded Positions: Any positions formerly funded with grant funds being recommended
for inclusion in a general (non-grant funded) operating budget shall be treated as expanded service
requests.
Self-Insurance: To conduct an actuarial study of the self-insured Workers’ Compensation,
Property and Casualty, and Group Health Insurance programs. Program funding is to be based
upon an actuarial confidence interval of 75%, except for group health, which will be funded to
include statutorily required reserves plus an amount equal to at least the expected cost variance
with 99% certainty.
Contract Agency Funding: The Board will not fund any non-mandated social service agencies.
Carry forward (Fund Balance): All funds that are unexpended and unencumbered at the end of
the fiscal year will be appropriated as carry-forward revenue in the following year. Carry forward
revenue represents operating funds and previously budgeted operating, debt service, and capital
reserves that are "carried forward" to fund these same reserves in the new year or to fund capital
projects in the current or future years. The most significant sources of carry forward are capital, debt
service, and enterprise funds. In both the General Fund and Unincorporated Area General Fund,
carry forward is maintained to provide cash flow for operations before the receipt of ad valorem
taxes and other general revenue sources.
Proper General Fund carryforward is necessary to meet significant constitutional transfer, public
safety, and priority operating needs for October and November prior to the receipt of any
significant ad valorem tax revenue (ad valorem taxes represent 63% of the total FY 2025 General
Fund adopted recurring operating revenues).
Carryforward balance is also an important measure bond rating agencies use to determine the
county’s creditworthiness. Specific concerns for Florida communities are reliance on the tourism
industry, sales tax revenue, and the ongoing threat from hurricanes and wildfires. For Florida
coastal communities, a minimum cash balance of 15% of total General Fund expenditures was
recommended by the rating agencies. Of course, this figure and recommendation was general in
nature and subject to each county’s individual cash flow needs. A higher percentage would be
considered positive – especially during any ratings surveillance.
The recommended level of year-ending cash in the General Fund should be a minimum of 15%
of actual expenditures. At the year ending September 30, 2024, the actual General Fund cash and
cash equivalents balance totaled $176.5 million, an increase of $14.9 million over the year ending
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September 30, 2023. The FY 2024 year-end cash position represents approximately 30.3% of
actual FY 2024 expenses.
Indirect Cost Allocation Plan: The policy of charging enterprise, special revenue, and grant
funds for support services provided by General Fund departments will be used again in FY 2026.
The basis of these charges is a detailed indirect cost allocation plan prepared, periodically, by a
consultant and adjusted by staff to reflect the organizational environment on a real-time basis.
Impact Fees: Collier County will assess impact fees at such levels as allowed by law, established
by the Board of County Commissioners, and supported by impact fee studies.
Enterprise Fund Payment In lieu of Taxes: The Solid Waste Fund and the Collier County
Water-Sewer District will once again contribute a payment in lieu of taxes (PILT) to the General
Fund. For FY 2025, the payment in lieu of taxes calculation was based upon a “franchise fee
equivalent basis,” commonly referred to as a percentage of gross receipts. Six percent (6.0%) of
gross receipts of the Water/Sewer District were applied in FY 2025. This method and percentage
will continue for FY 2026. One and three-quarter percent (1.75%) of Solid Waste tipping fees were
applied in FY 2025, and this method and percentage are planned in FY 2026. This method is a
common approach used by local governments and is generally consistent with fees paid by private
utilities operating in a local government jurisdiction.
Prior to FY 2013, PILT was based on the prior year's General Fund millage rate multiplied by the
prior year's gross (non-depreciated) value of property, plant, and equipment.
Debt Service: Any capital projects financed by borrowing money shall limit the repayment period
to the asset's useful life.
Interim Financing: Collier County may also borrow funds on an interim basis to fund capital
projects. In these cases, a repayment source shall be identified, and the financing source with the
lowest total cost shall be employed.
The Collier County Debt Management Policy provides that debt restructuring for economic
savings will be undertaken when a present value savings of at least 5% of the refunded debt can
be achieved. The policy also states that 5% savings is often considered a benchmark and that any
refunding that produces a smaller net present value savings may be considered on a case-by-case
basis. A smaller net present value savings may be prudent, for example, when the intent is to
eliminate old, antiquated, and limiting bond covenant language.
Ad Valorem Capital and Debt Funding: Continuation of a General Fund equivalent millage
dedicated to ongoing regular general governmental capital projects, debt service, and investments
for impact fee fund debt from the General Fund. The target rate is the equivalent of 0.3333 mills.
(See history on the next page).
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The General Fund continues to invest money into impact fee funds to pay their annual debt service
payments. This is in addition to normal and customary debt service on non-growth revenue bond
debt. Investments from the General Fund to the impact fee trust funds began in FY 2006 and the
value now exceeds $105 million.
Capital Improvement Program (CIP) Policies: On an annual basis, the County shall prepare
and adopt a five-year Capital Improvement Element (CIE) consistent with the requirements of the
Growth Management Plan.
• Capital projects attributable to growth will be funded by impact fees to the extent possible.
• Capital projects identified in the five-year CIE will be given priority for funding. The five-
year plan for water and wastewater CIE projects will be based on projects included in the
adopted master plans.
Unlike operating budgets administered at the appropriation unit level, capital project budgets will
continue to be administered on a total project budget basis. The minimum threshold for projects
budgeted in capital funds is $25,000.
0.5383
0.3920 0.4289 0.3582 0.4211 0.4528 0.5539 0.6823 0.5569
0.3845
0.0000
0.2000
0.4000
0.6000
0.8000
1.0000
1.2000
MillageGeneral Fund Capital Equivalent Millage History
(FY 2016 -FY 2025)
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Three-Year Budget Projections
Ad Valorem Tax Funds
(FY 2026 - FY 2028)
Corporate Financial & Management Services staff prepares annually a three-year projection of
General Fund and Unincorporated Area General Fund revenues and expenditures to improve
financial planning and to understand the long-term impact of funding decisions. These projections
are complimented by a trend analysis of revenues and expenses, which conclude the General Fund
and Unincorporated Area General Fund sections.
The following 3-year budget projections are for the General Fund (0001) and the MSTD General
Fund (1011).
General Fund
General Fund (0001) Millage History and Projected Millage Rates
The following graph plots the historical General Fund millage rate as a point of reference. Millage
rates will continue to be established utilizing a priority-based budgeting approach.
While the County Manager will recommend a General Fund priority-based operating budget in FY
2026, which will contain funding for priority public safety and other significant asset
maintenance/replacement initiatives, the Board should note the magnitude of our current and future
asset maintenance responsibility and significant new initiatives.
Diversifying the County’s revenue mix means, in large part, attempting to reduce risk. Risk of an
economic downturn, which will surely stagnate resources, and organizational risk, where the risk
of stagnating resources exponentially impacts operations and capital resource allocation.
Significant future resources must be devoted to capital maintenance in numerous areas. We have
addressed our future heavy equipment, public safety ambulance, and general vehicle replacement
needs. But substantial asset maintenance and replacement needs remain, not the least of which is
general governmental building maintenance, park system infrastructure, constitutional officer
3.5645 3.5645 3.5645 3.5645 3.5645 3.5645 3.5645 3.5645 3.5645
3.2043
3.0107
2.6000
2.8000
3.0000
3.2000
3.4000
3.6000
3.8000
FY15 FY16 FY17 FY18 FY19 FY20 FY21 FY22 FY23 FY 24 FY 25
General Fund Millage History Tax Rates
(FY 2015 to FY 2025)
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capital requirements, and other general governmental capital functions like information technology
upgrades, enterprise resource planning software updates, and other soft infrastructure needs. Then,
there is the issue of maintaining existing storm-water infrastructure, which for FY 2026 will be
funded through general governmental appropriations.
The Board directed a departure from the millage-neutral rate in FY 2024 and instead adopted the
rolled-back rates of 3.2043 and 3.0107 for FY 2024 and FY 2025, respectively. The table below
illustrates the planning increase in ad valorem revenue for fiscal years 2026, 2027, and 2028.
General Fund
Additional Budgeted Ad Valorem Revenue Projection Each Year
(Based on Planning Estimate)
FY 2026 $22,919,000 @ 5% Increase – Potential Year Net New TV
FY 2027 $14,438,900 @ 3% Increase - Current Year Net New TV
FY 2028 $14,872,100 @ 3% Increase - Current Year Net New TV
For Collier County to continue providing high quality best value services; continue to address
infrastructure maintenance and replacement; replace public safety and general governmental
equipment and vehicles; and maintain its reserve and cash positions according to policy and
representative of an investment quality credit rated organization, it is prudent to prioritize
programs and work to diversify revenue sources. While reliance on property tax revenue has been
a staple, there is growing recognition of the need to explore alternate revenue streams to maintain
the extraordinary world-class infrastructure and programs that this community enjoys.
Based on estimates from the July 31, 2024, Ad Valorem Estimating Conference, the projected tax
base increase for FY 2026 (the 2025 tax year) is 12.3%. Taxable value in FY 2027 is projected to
increase 8.2%, and taxable value in FY 2028 is projected to increase 6.9%. The following table
illustrates the projected increase in ad valorem revenue at a millage-neutral for fiscal years 2026,
2027, and 2028.
General Fund
Additional Budgeted Ad Valorem Revenue Projection Each Year
(Based on State Ad Valorem Projections)
FY 2026 $56,380,600 @ 12.3% Increase - Current Year Net New TV
FY 2027 $42,210,300 @ 8.2% Increase - Current Year Net New TV
FY 2028 $38,430,900 @ 6.9% Increase - Current Year Net New TV
A millage-neutral General Fund tax levy would yield an additional $84.8 million in ad valorem
revenue over the three-year period.
The Property Appraiser will provide preliminary taxable value estimates for FY 2026 on June 1,
2025. At this point, a preliminary millage rate can be calculated based on budget requirements
within the Board’s established control lines. Actual and state-projected changes in County taxable
values are as follows:
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FY 2026 Significant Expense Assumptions
A priority-based operating budget, utilizing a planning increase of 5% in taxable value,
provides the County with the ad valorem dollars necessary to maintain our assets, invest in our
personnel, and service those who live and visit Collier County. Significant expense
assumptions include:
• Appropriate dollars equivalent to a 3% wage increase inclusive of pay plan
maintenance component to strengthen certain targeted classification pay grades where
market balance exists. The total allocation, inclusive of retirement and FICA, across
the County Manager Agency is approximately $5.7 million.
• Appropriate dollars equivalent to a 9% increase in plan premiums. Potential for
additional increases at the fund level.
• 2% attrition rate on regular salaries assumed in the County Manager’s Agency.
• Motor pool replacement dollars for routine ambulance replacement on schedule.
• Planning capital transfer of $27.3 million for general governmental infrastructure
replacement/maintenance.
• $5 million allocation toward long-term general governmental asset maintenance
reserve.
• Continued Social Service and Mental Health Funding.
• General fund investment to impact fee trust funds is planned at $2.1 million.
• Stormwater maintenance, operations, and transfers for capital and debt service
payments planned at $9 million.
• General Fund transfer dollars supporting road construction and maintenance funded at
$10.1 million.
• General Fund support of EMS Operations established at $32 million.
• Full support for Transportation Operations from the General Fund (0001) exclusively
in the amount of $28.5 million.
• Continued corporate IT capital funding.
8.5%
10.0%
8.4%
5.6%5.5%6.4%5.6%
16.7%
13.0%
10.3%
12.3%
8.2%6.9%
0.0%
5.0%
10.0%
15.0%
20.0%
Historical and Projected Changes in Collier County Taxable Values
FY 2015 -FY 2028
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• Mandates to be absorbed within operating budgets, including Constitutional Officers,
if possible.
Significant Revenue Assumptions
• FY 2025 ad valorem tax revenue forecast is 95.8% of actual taxes levied. FY 2025 forecast
totals $439.1 million – a reduction of $19.3 million from the adopted budget. Collections
are within the 5% statutorily budgeted revenue reserve.
• Planned taxable value increase of 5% produces a levy of $481.3 million for FY 2026.
• Sales tax revenue forecast for FY 2025 is projected at $61.4 million, a reduction of $1.9
million from the adopted budget. FY 2026 budgeted revenue is planned at $64.9 million,
which is aligned with Department of Revenue projections.
• State revenue sharing forecast for FY 2025 is conservatively projected at $16 million. The
FY 2026 budget is projected at $16.8 million, which aligns with the Department of
Revenue estimates.
• Property taxes, sales taxes, and revenue sharing deposited in the General Fund represent
93.5% of all recurring operating revenue, excluding carry-forward (fund balance).
• The Constitutional Officer turn-back is a conservative budget estimate, and for FY 2026,
$7.6 million is planned. Turnback to the General Fund at the year ending 2024 totaled
$15.4 million.
• Measures to maintain annual beginning cash balance are necessary and include continued
growth in budgeted reserves coupled with any combination of revenue receipts over budget
and expense side budget management.
• Interest income for FY 2026 is conservatively planned at $1,200,000.
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EMS Fund
EMS Operations Fund (4050) is another fund that impacts the General Fund. Typically, this ad
valorem support in recent years accounted for 45% to 55% of total EMS operating revenues. The
percentage varies given the instability in fee revenue collections and Board policy directives. The
General Fund subsidy planned for FY 2026 is up $1.7 million. Historical and projected General
Fund support of EMS operations by fiscal year are as follows:
The use of General Fund dollars to support this life/safety function has been and continues to be a
priority.
Road Construction Program
Board-approved budgets have recently supplemented funding for the transportation network with
general governmental dollars transferred from the General Fund to Transportation Capital Fund
(3081). This transfer is sized annually based on the recurring need to fund other strategic capital
commitments. For FY 2026, the General Fund contribution to road construction and maintenance
is planned to total $10.1 million which equates to a 5% increase over the FY 2025 budgeted transfer
of $9.7 million. This transfer is subject to change based on priority and budget year execution
patterns.
As future budgets are planned and scarce resources allocated, infrastructure maintenance and non-
growth-related improvements will certainly require a dedicated commitment of general revenue to
protect this investment. Capital obligations necessitated by state or federal agreements, like JPAs
and DCAs, will be funded.
$13.8 $15.0
$17.6 $18.0 $18.0 $18.0
$21.4
$25.3
$29.4 $30.4 $32.0
$33.7 $35.4
$0
$5
$10
$15
$20
$25
$30
$35
$40
MillionsGeneral Fund Support of EMS
(FY 2016 -FY 2028)
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FY 2027
An operating budget in FY 2027 with an estimated increase of 3.0% in taxable value from the
current year's value will continue to allow for priority funding of public safety capital initiatives
and general governmental capital programming referenced in this document with proper budget
management. This, of course, is in addition to the many new initiatives and program enhancements
that the Board has directed or otherwise required to support an expanding service base, all of which
compete for limited general governmental resources.
In addition to annual inflationary cost increases, the following items were included in the FY 2027
budget analysis:
• Maintain general governmental capital projects recurring funding.
• Maintain General Fund support of EMS.
• Maintain Contingency reserves at policy levels.
• Maintain General Fund road subsidy.
• Maintain General Fund support for park system maintenance and replacement.
• Maintain General Fund support for Transportation Operations expenses.
• Continue annual contribution to the long-term asset maintenance reserve.
In summary, the FY 2027 analysis signals caution, especially when critical variables like market
conditions and general revenues are difficult to predict. Pursuing an operating budget without a
proper beginning fund balance would likely result in a $39 million year over year budget planning
reduction, as depicted in the trend analysis below. Of course, regular annual budget management
to eliminate any actual equity reduction would occur in real-time.
FY 2028
An operating budget in FY 2028, coupled with a 3.0% increase in taxable value, can allow for
continued funding of asset maintenance and replacement while funding programs and services
enjoyed by an expanding population base. Once again, prioritization and budget management will
be important to achieve an appropriate beginning fund balance.
The following items were included in the FY 2028 budget analysis:
• Maintain general governmental capital projects recurring funding.
• Maintain General Fund support of EMS.
• Contingency reserves are maintained at policy levels.
• Maintain General Fund road subsidy.
• Maintain General Fund support for park system maintenance and replacement.
• Maintain General Fund support for Transportation Operations expenses.
• Continue annual contribution to the long-term asset maintenance reserve.
The General Fund Trend Analysis model shown below is intended to offer a picture of very
conservative revenue projections against operating and capital expenses, which will likely be faced
in the future. Of course, financial staff manages the budget in real time and will mitigate unplanned
equity reductions. But imagine a scenario where primary revenue sources like state-shared
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revenues were cut or reduced. The obvious impact would be subsequent expense reductions,
possibly coupled with newly adopted revenue sources and thus the need for budget flexibility.
General Fund Trend Analysis
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Unincorporated Area General Fund (1011)
Unincorporated Area General Fund (1011) Millage History
The graph below plots the historical Unincorporated Area General Fund (1011) millage rate.
Moving forward, millage rates will be established using a priority-based budgeting approach.
Results of Unincorporated Area General Fund Analysis
The Board directed a departure from the millage-neutral rate in FY 2024 and FY 2025 and adopted
the rolled-back rate of 0.7280 and 0.6844, respectively. The table below depicts the forecast
marginal dollar increase resulting from an estimated 5.0% Current Year Net New Taxable Value
in FY 2026 and 3.0% in FY 2027 and FY 2028.
Unincorporated
Area
General Fund
Additional Budgeted Ad Valorem Revenue Projection Each Year
(Based on Net New Taxable Value Estimate)
FY 2026 $3,302,200 - 5.0% Increase - Current Year Net New TV
FY 2027 $2,080,400 - 3.0% Increase - Current Year Net New TV
FY 2028 $2,142,900 - 3.0% Increase - Current Year Net New TV
Based on estimates from the July 31, 2024 Ad Valorem Estimating Conference, the projected tax
base increase for FY 2026 (the 2025 tax year) is 12.3%. Taxable value in FY 2027 is projected to
increase 8.2%, and taxable value in FY 2028 is projected to increase 6.9%. The following table
illustrates the projected increase in ad valorem revenue at a millage-neutral rate for fiscal years
2026, 2027, and 2028.
0.7161
0.8069 0.8069 0.8069 0.8069 0.8069 0.8069 0.8069
0.7280
0.6844
0.6000
0.6500
0.7000
0.7500
0.8000
0.8500
MillageUnincorporated MSTD General Fund (1011) Millage History
(FY 2016 to FY 2025)
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Unincorporated
Area
General Fund
Additional Budgeted Ad Valorem Revenue Projection Each Year
(Based on State Ad Valorem Projections)
FY 2026 $8,123,700 - 12.3% Increase - Current Year Net New TV
FY 2027 $6,081,900 - 8.2% Increase - Current Year Net New TV
FY 2028 $5,537,300 - 6.9% Increase - Current Year Net New TV
Based on these estimates a millage-neutral Unincorporated General Fund tax levy would raise an
additional $12.2 million over the three-year period.
FY 2026
The FY 2026 budget projection is based upon a planning scenario that includes a 5.0% increase
from the current year’s taxable value. Property taxes and the state-shared communications services
tax represent the majority of the budgeted operating revenue (less transfers) within the
Unincorporated Area General Fund (1011). Once again, changes to the distribution and structure
of the communication services tax could be discussed as part of any state legislative budget
proposal. Also, there is the assumption that no legislation will be passed, further eroding a local
government’s ability to set and raise ad valorem taxes or curtail other local revenue sources.
Projected Capital transfers of $26.1 million from the Unincorporated Area General Fund are
planned for FY 2026. These transfer dollars are programmed for Park improvements, Pelican Bay-
Clam Pass, Transportation system enhancements, and Stormwater infrastructure.
In FY 2026, a priority-based budgeting approach will be utilized. Although expenditures are
planned for all significant areas, priority-based budgeting may reallocate funding across
departments to optimize resources and align funding with budget priorities.
FY 2027
The model assumes planned taxable value increases will result in a 3% increase, which could result
in a fund balance reduction of $2.1 million, as depicted in the trend analysis below. The model
presents conservative revenue projections and a projected 2% increase in operational and capital
expenditures.
FY 2028
Continuing the planned increases of 3% related to taxable value into FY 2028 would generate a
modest increase in ad valorem revenue. This increase is certainly not enough to compensate for
the loss in fund equity and planned capital asset maintenance depicted in the model. For planning
purposes and assuming a continued decline in the fund balance, a reduction of $1.6 million is
depicted.
The Unincorporated Area General Fund Trend Analysis model shown below is intended to offer a
picture of conservative revenue and expenses faced in the out years. Of course, financial staff
manages the budget in real time and will mitigate unplanned equity reductions. But imagine a
scenario where major revenue sources like property taxes or communication services tax revenues
were cut or reduced. The obvious impact would be subsequent expense reductions, possibly
coupled with newly adopted revenue sources, and thus the need for budget flexibility.
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Unincorporated Area General Fund Trend Analysis
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