Agenda 03/10/2026 Item #11E (Resolution - Adopt the FY 2027 Budget Policy, and adopt a Resolution establishing a deadline of May 1, 2026, for budget submittals by the Supervisor of Elections)3/10/2026
Item # 11.E
ID# 2026-466
Executive Summary
Recommendation to Adopt the FY 2027 Budget Policy, and adopt a Resolution establishing a deadline of May 1, 2026,
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 2027.
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 17, 2026, the Board held a Strategic Plan and Budget Policy Workshop with presentations and discussion
on topics including the County’s strategic plan, FY 2027 budget policy, budget timeline, and utilization of a priority-
based budgeting approach.
For staff to proceed with the preparation of the FY 2027 priority-based budget, formalized 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 the preparation of the FY 2027
budget. The budget policy document is broken down into three distinct elements. The first consists of budget policies
proposed in FY 2027 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 10, 2026. The Board needs to establish June budget workshop dates.
Tentative dates are Thursday, June 18, 2026, and Friday, June 19, 2026, 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 23rd, through Friday,
June 26, 2026, in Orlando, Florida.
Adoption of the maximum tentative millage rates is scheduled for Tuesday, July 14, 2026. 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 12, 2026, to prepare the Notice of Proposed Property Taxes.
Finally, the Board needs to establish September public hearing dates for the adoption of the FY 2027 budget. The
School Board has tentatively scheduled Wednesday, September 9, 2026, 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 3, 2026, and Thursday, September 17, 2026.
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 2027 priority-
based budget.
GROWTH MANAGEMENT IMPACT: There is no Growth Management impact.
LEGAL CONSIDERATIONS: Florida Statutes Sec. 129.03(2) provides as follows:
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
3/10/2026
Item # 11.E
ID# 2026-466
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. —SRT
RECOMMENDATION(S): 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 1, 2026, 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 2027 Budget Policy and Constitutionals
2. Fiscal Year 2027 Recommended Budget Policies to BCC Final
RESOLUTION NO.2026-
A RESOLUTION PURSUANT TO SECTION I29.03, FLORIDA STATUTES,
REQUIRING THE FY 27 TENTATIVE BUDGETS OF THE SHERIFF, THE
SUPERVISOR OF ELECTIONS AND THE CLERK TO BE SUBMITTED TO THE
BOARD OF COUNTY COMMISSIONERS BY MAY I,2026.
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 of the Sheriff, the Supervisor of
Elections and the Clerk to be submitted by May I of each year.
NOUTHEREFORE,BE IT RESOLVED BY THE BOARD OF COUNTY
COMMISSIONERS OF COLLIER COUNTY, FLORIDA, pursuant to Section 129.03, Florida
Statutes, that the Sheriff, the Supervisor ofElections, and the Clerk ofthe County of Collier,
Florida, are hereby required to submit their respective tentative budgets for the FY 27 fiscal year
to the Board of County Commissioners by May 1,2026.
This Resolution shall be effective on its adoption.
This Resolution adopted this 106 day of March 2026, after motion, second and
majority vote.
ATTEST:
CRYSTAL K. KINZEL, Clerk
Approved as to form and
legality:
R
BOARD OF COLTNTY COMMISSIONERS
COLLIER COUNTY, FLORIDA
By
Dan Kowal, Chairman
211/L
Jeffrey A. Klatzkow
County Attomey
I2GMBG @7rUZ@246611.1
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Policy Document Page 1
Fiscal Year 2027
Recommended Budget Policies
Collier County Board of County Commissioners
March 10, 2026
Policy Document Page 2
Table of Contents
Section Pages
1. Overview and Priority-Based Budget Planning 3 to 8
2. General FY 2027 Annual Budget Policies – Significant Influences 8 to 11
3. FY 2027 General Governmental Initiatives 11 to 13
4. Taxable Value Discussion 13 to 14
5. Conservation Collier 14 to 15
6. Summary of FY 2027 Budget Strategies 15 to 19
7. County Grant Funding 19
8. Local Option Infrastructure Sales Tax 19 to 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 25 to 26
14. Millage Rate Targets for MSTU’s 26
15. Revenue Centric Budgets 26 to 27
16. 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. 32 to 34
22. General Governmental; Enterprise Fund and Other Reserve Policies 34 to 40
23. Suggested Scheduling Timeline 40
24. Continuing Routine Budget Policies for FY 2026 40 to 42
25. Three-Year Budget Projections – General Fund 43 to 49
26. Three-Year Budget Projections – Unincorporated Area GF 50 to 52
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 2027 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 2027, 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 three of the priority-based budgeting process will involve the continued implementation
of cost-saving and revenue-generating program insights, along with the review of program
processes utilizing benchmarking to ensure efficiency and cost-effectiveness.
Economic Factors
Over the past year, Collier County’s economic environment has continued to stabilize, with
inflation moderating and interest rates leveling off after a period of volatility. While housing
costs remain elevated, the pace of increase has slowed, and inventory levels have risen. These
conditions have helped ease some pressure on operating expenses and capital project costs.
However, payroll costs remain under upward pressure due to competitive labor market
dynamics and the need to retain skilled personnel.
Taxable value county-wide has increased for the fourteenth (14) consecutive year and is
expected to increase once again for the 2026 (FY 2027) tax year. Major general governmental
revenue sources like sales tax, state shared revenues, and gas taxes all exceeded the forecast for
FY 2025 and are trending slightly higher for FY 2026.
• The issuance of permits for single-family new construction has decreased significantly.
On average, 184 permits were issued each month through FY 2025, a 14.4% decrease
Policy Document Page 4
from the FY 2024 monthly average of 215 and a 26.1% decrease from the 2023 average
of 249. Most permits are for building one- and two-family residential units.
• Total existing single-family home sales experienced a slight decline of 0.8%, decreasing
from 4,451 in FY 2024 to 4,417 in FY 2025. Despite a notable rise in inventory, prices
remained seasonally strong, though the average monthly median home price dipped
marginally from $815,880 in FY 2024 to $801,067 in FY 2025.
• In December 2025, Collier County's unemployment rate stood at 5.2%, representing an
increase of 1.7% from December 2024. During the same period, Southwest Florida
reported an unemployment rate of 5.4%, the State of Florida reported a rate of 4.3%,
while the United States recorded a rate of 4.4%.
• Visitation to the destination fiscal year-to-date through December totaled 667,200, up
0.7% from FY 2025. Direct spending for the FY 2026 period through December totaled
$625.7 million, a 0.4% decrease over the same period in FY 2025.
As we usher in calendar year 2026, economic indicators reflect cautious optimism amid a
stabilizing national and regional landscape. Inflation has moderated, with the Consumer Price
Index (CPI) stabilizing at a 2.6% annualized rate, and interest rates have fallen. Locally, major
employers, including Collier County, are continuing to exhibit financial strength, and the labor
market remains fairly resilient despite a slight increase in unemployment and some softening
in hiring trends. Local sales tax, gas tax, state shared revenues, impact fees, and tourist
development taxes remain strong, supporting the County’s fiscal health. Senior leadership
continues to monitor economic indicators closely and remains prepared to respond, if necessary,
to any softening in conditions.
The County is well-positioned to structure and issue strategic general governmental and
enterprise debt for capital projects, subject to review and recommendation by the Finance
Committee. As the County continues to grow and invest in infrastructure, projects such as the
expansion of the transportation grid, stormwater system upgrades, general governmental facility
improvements, and the continued development of the Collier County Water Sewer District’s
system are expected to require additional financing or refinancing during FY 2027, FY 2028,
and beyond. The County’s strong credit rating, conservative debt management practices, and
flexible budget framework support its ability to pursue cost-effective financing strategies
aligned with long-term capital planning.
The Budget as a Tactical Financial Tool and Strategic Policy Model
The annual budget document is viewed as a one-time tactical financial plan that allocates funds
for one-year initiatives, activities, and projects in support of the longer-term strategic objectives
outlined in the Collier County Strategic Plan. This tactical budget begins with a review of annual
budget policies, which specify the detailed issues to be funded.
While the budget serves as a tactical tool, its components also allocate dollars strategically. Multi-
year funding for key infrastructure projects often follows a phased approach and can take three to
seven years to complete. Reserves set aside for future asset maintenance and replacement, vehicle
and equipment replacements, natural disasters, and unforeseen risks are considered vital strategic
requirements, highlighting the importance of careful resource allocation among competing short-
term and long-term priorities.
Policy Document Page 5
As the County’s general governmental and enterprise capital assets grow, repeatedly resourcing
long-term asset maintenance and replacement becomes increasingly important.
For FY 2026, $753 million or 34.2% of the County’s $2.2 billion net budget is for county-wide
enterprise and general governmental capital projects, and capital reserves. Planning numbers for
FY 2027 within the General Fund allocate $76.6 million or 10.1% of the $755 million spending
plan toward capital initiatives, including projects, debt repayment, and capital reserves.
General Governmental Revenues – FY 2025
Fiscal year ending FY 2025, 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 2025 collections were lower
than FY 2024 and FY 2023 collections by 2.8% and 8.3%, respectively. The County received
$68,746,452 in FY 2023, $64,862,410 in FY 2024, and $63,054,689 in FY 2025. The following
graph depicts the FY 2023 to FY 2025 monthly relationship in collections.
Budgeted half-cent sales tax collections for FY 2026 total $64,936,400, which is modestly higher
than the October State estimates of $64,330,907.
State revenue sharing is another key general government revenue source deposited in the General
Fund. FY 2025 collections increased over FY 2024 collections by 1.8% and decreased over FY
2023 collections by 1.3%. The County received $18,830,743 in FY 2023, $18,251,220 in FY 2024,
and $18,584,199 in FY 2025. The FY 2026 budget totals $16,811,400, slightly conservative
relative to the October State estimate of $17,379,837.
$0
$2,000,000
$4,000,000
$6,000,000
$8,000,000
Oct Nov Dec Jan Feb Mar Apr May Jun Jul Aug Sept
Half Cent Sales Tax -States Distribution to County
2023 2024 2025
Policy Document Page 6
Aggregate special revenue gas tax receipts have continued to grow in FY 2025, increasing over
FY 2024 and FY 2023 by 0.2% and 2.6%, respectively. Actual receipts totaled $25,349,820 in FY
2023, $25,188,635 in FY 2024, and $25,852,689 in FY 2025. For FY 2026, gas tax revenue is
budgeted at $22,600,000, which is conservative compared to the August State estimate of
$25,943,177.
Actual tourist development tax collections in FY 2023 totaled $44,107,953 and increased
significantly in FY 2024 to $48,636,665. FY 2025 collections set a new record of $49,827,537,
surpassing the previous record in FY 2024 by $1,190,872 or 2.4%. FY 2026 collections are
trending slightly upward, with collections through January up 6.6% 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 December, the BCC has approved in
excess of $134 million in funding for recovery and has expended upward of $108.8 million on
$0
$500,000
$1,000,000
$1,500,000
$2,000,000
$2,500,000
$3,000,000
$3,500,000
$4,000,000
$4,500,000
$5,000,000
Oct Nov Dec Jan Feb Mar Apr May Jun Jul Aug Sept
State Shared Revenues
2023 2024 2025
$0
$500,000
$1,000,000
$1,500,000
$2,000,000
$2,500,000
$3,000,000
Oct Nov Dec Jan Feb Mar Apr May Jun Jul Aug Sept
Gas Tax Revenues
2023 2024 2025
Policy Document Page 7
these efforts. To date, the County has recovered $46.7 million in FEMA and insurance
reimbursements.
The following summary table shows the hurricane recovery budget and actuals by storm through
December 29, 2025.
There will be a significant budgetary impact in FY 2026 and FY 2027 from these storms, which
will largely depend upon when reimbursement revenue is received. Corporate Financial &
Management Services (CFMS) closely monitors the reimbursement stream and is ready to
implement any necessary FY 2026 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 with sufficient cash balances, FEMA revenue is budgeted, and a
corresponding expense budget is appropriated, anticipating some level of reimbursement
in the upcoming months or years. Planned revenue and existing fund balances are used
for cash flow until FEMA deposits are received.
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 2027 budget plan will allocate funding utilizing a priority-based budgeting approach for
recurring operational expenses and continue funding for replacement and maintenance of capital
infrastructure, as well as new capital initiatives. Capital and operational programming continue to
compete for limited resources, which remains a pressure point as appropriation decisions are made
for the General Fund (0001) and the Unincorporated Area General Fund (1011). That said, the
budget document must remain flexible - a key component of the budget management process and
Policy Document Page 8
widely recognized by those agencies that 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
2027 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 land development and Golden Gate; government facilities
improvements; and other policy initiatives as directed by the Board.
• Planning for recurring general governmental funding to maintain stormwater
infrastructure; continue a “pay as you go” capital component and payment of debt service
all totaling a planned $23.2 million, consisting of appropriations from the General Fund
and Unincorporated Area General Fund.
• Board policy guidance on issues like affordable housing; mental health programming;
continued development of the Golden Gate Golf Course property, Hussey property,
Camp Keais property, and 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 on operational funding, related to technology and cybersecurity
investments to support operational efficiency and safeguard critical infrastructure.
• Level of General Fund transfer support to the constitutional officers, specifically the
Sheriff.
• Funding for Constitutional officer capital funding requests.
• State and federal legislative impacts, including potential mandates that could affect local
revenue streams, such as ad valorem or increase expenditure obligations.
Annual Budget Policies
Significant Budget Influences:
Using a priority-based budgeting methodology, along with the budget control lines outlined in
Collier County Board of County Commissioners Resolution 2026-37, resources are allocated to
competing services, programs, projects, and capital initiatives. Significant resources have been and
will continue to be allocated to public safety, public health, debt management, and the replacement
Policy Document Page 9
of essential infrastructure and equipment. Property (ad valorem) taxes will once again constitute
the majority of the County’s budget revenue, representing approximately 46% of the total net
recurring annual operating revenue and 65% of the General Fund’s recurring revenue sources for
FY 2026. Additionally, seventy-six percent (76%) of the General Fund revenue is derived from
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
attention is paid to property (ad valorem) taxes and factors, including legislation currently under
consideration, that can influence millage rate and tax levy decisions.
Policy planning is built around a 4% increase in taxable value. This results in a $19.9 million
increase in the FY 2027 planned levy compared to the FY 2026 adopted levy. The following points
are important to consider regarding general government tax policy for FY 2027.
• The BCC adopted a millage-neutral General Fund millage rate of $3.0107 for FY 2026
after two consecutive years of adopting the rolled-back rate. The reduction in the millage
Ad Valorem
46%Gas/Sales Tax
6%
Permits/
Assessments/
Fines
7%
Intergov'tal
Revenues
2%
Service
Charges
29%Impact Fees
4%Bond
Proceeds/
Interest
6%
FY 2026 Sources of Current County
Government Revenues all Funds
Ad Valorem
65%
Sales Tax
9%
State Revenue
Sharing
2%
Intergov'tal
Revenues
0.5%
Fines, Permits,
Charges 3%
Interest &
Misc.
0.5%
Carryforward
18%
Interfund
Transfers and
Payments
1%
Transfers from
Consitutional
Officers
1%
FY 2026 General Fund Revenue Sources
General Fund
80%
MSTU's 2%
Conservation
Collier 6%
Pollution
Control 1%
Unincorporated
Area General
Fund 11%
FY 2026 Property Tax by Major Funds
Policy Document Page 10
rate from the historical rate of 3.5645 has resulted in General Fund taxpayer savings
exceeding $225 million over the three-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. 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 currently comprise 65% of total General Fund recurring revenue.
• Multiple potential proposals that are currently making their way through the legislature
and have the potential to eliminate or phase out non-school property taxes for homestead
property.
• Planned within the General Fund for FY 2027 is $76.6 million supporting various general
governmental capital initiatives, in the areas of transportation, parks and recreation,
stormwater, museums, IT, constitutional capital requests, etc.
• Constitutional operating transfers out of the General Fund (including board-paid
requirements) constitute 47% of all FY 2026 General Fund appropriations. While the
Board can control these appropriations, based on history and pending legislation, it is
unlikely that cuts would be made to constitutional officer operations, especially the
Sheriff.
Of the $732.4 million FY 2026 General Fund Budget, only about 28%, or $204.9 million, is
considered somewhat discretionary. The remaining appropriations are classified as Health, Safety,
and Welfare (58%), Debt Service (2%), and Mandates (12%), where there is very limited to no
discretion over appropriations.
Policy Document Page 11
Property tax revenue comprises 78% of the FY 2026 Unincorporated Area General Fund operating
revenue sources, and when including the Communication Services revenue sharing from the State,
the revenue mix jumps to 83%.
A substantial decrease in ad valorem or 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 2027 General Governmental Initiatives:
Identified general governmental capital improvements/operating initiatives over the next few years
include:
• Year three of utilizing a priority-based budgeting approach to enhance organizational
performance, optimize program spending, and diversify revenues.
• Park system infrastructure renewal and replacement.
• Additional phases of the Paradise Coast Sports Complex, including related operations.
• Promote economic development by increasing affordable housing options for the area’s
workforce.
• Design and Construction of the Veterans Community Center at the Golden Gate Golf
Course.
Policy Document Page 12
• Rehabilitation of Tiger Tail Beach restroom, lift station, and concession facility.
• Master planning on the Camp Keais, Hussey, and Williams property.
• Ongoing redevelopment of various phases of the Golden Gate Golf Course.
• Upgrades to IT infrastructure, including security measures and the funding for 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 repair of facilities damaged by hurricanes.
• Annual allocation to the County-Wide Capital Reserves.
• Sheriff’s capital projects, including funding for capital equipment and various
maintenance and facility upgrades.
• Ongoing funding for stormwater 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.
• Funding for unforeseen state and federal mandates.
Whether paid by cash or financed, 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 allocated to the County-Wide Capital
Reserve for FY 2027 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 unforeseen circumstances, including natural disasters, and may reduce
future government borrowing.
The General Fund and Unincorporated Area General Fund contributions to CRAs and innovation
zones for FY 2026 totaled $17.1 million (an increase of $2 million over FY 2025) and $2.1 million
(an increase of $286K over FY 2025), respectively. These figures are expected to grow in FY 2027
with projected increases in the tax base.
Other factors that will be significantly impacted by general governmental tax policy include:
Policy Document Page 13
• 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.
• Level of resources to cover the organization’s current and future asset maintenance
responsibility.
• Balancing priorities between operating and capital expenses within a revenue structure
heavily reliant upon property taxes.
• Support for General Fund and/or Unincorporated Area General Fund operating and capital
initiatives described above under FY 2027 general governmental initiatives.
• Impacts of potential unfunded mandates, including continued state legislation aimed at
limiting a county's ability to raise property tax revenue and to reduce existing shared
revenue sources like the Communication Services Tax (CST); 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,.
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 2027 Budget and Financial Strategies
The county-wide tax base has increased for fourteen (14) consecutive years and is expected to
increase again for FY 2027 (Tax Year 2026). The following table provides a history of Countywide
and Unincorporated Area taxable values over the past ten (10) years (tax year 2016-2025, fiscal
year 2016-2026), as well as the budget planning projection for tax year 2026 (fiscal year 2027).
Policy Document Page 14
The January 2026 State Ad Valorem Estimating Conference Report for the 2026 tax year (FY
2027) projects an increase of 4.1% 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 2027 budget planning strategy revolves around a conservative projection of a 4% 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.
Tax or “millage” rates for the past ten (10) years are shown in table form below.
Millage Area FY 17-FY 23
(7 Years)
FY 24 FY 25-FY 26
(2 Years)
FY 27
Planning
General Fund $3.5645 $3.2043 $3.0107 TBD
Unincorporated
Area General Fund
$.8069 $.7280 $.6844 TBD
According to the Urban Institute, property tax collections by local governments generally account
for about 30% of all general government collections for those local entities. In our county, property
tax revenue is substantial, accounting for 65% of the General Fund (0001) and 46% of total net
county recurring revenue, including fund balances. The legislator is considering major property
tax reforms, including several proposals to reduce or phase out non-school homestead property
tax, which would greatly impact the County’s control over this significant general governmental
revenue source.
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.
Policy Document Page 15
For FY 2026, the budget included a millage rate of $0.2096, which is anticipated to generate
approximately $34.6 million in property taxes. Consistent with Ordinance 2002-63 as amended,
the Board approves, via the budget, the amount 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 2026, this budgeted
transfer totals $16.4 million.
Planned FY 2027 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 2027 Budget Strategies to Achieve a Structurally Balanced
Budget
The following table highlights specific FY 2027 budget strategies detailed within this document,
which the Board will consider as part of the Adopted Budget Policies.
1
The County Manager proposes submitting a single FY 2027 Budget. The BCC adopted
Resolution 2026-37 on January 27th, 2026, establishing a framework to constrain
county spending at 2026 baseline levels and authorizing limited annual increases for
operating and capital costs. The established limitations are up to a 3.0% increase in
recurring operating costs and up to a 5.0% increase in capital costs for FY 2027.
These limitations will result in departmental prioritization and adjustments within
strategically identified areas to meet this budget guidance.
2
The General Fund (0001) recommended millage rate will be calculated based on
prioritized budget requirements, in accordance with the guidelines outlined in BCC
Resolution 2026-37 and this policy. The FY 2026 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 including capital reserves and debt service totaling $85.5 million to
general governmental facilities and constitutional capital needs, the regional park
system, the transportation network, stormwater maintenance, IT infrastructure and
museums. General Fund reserves for FY 2026 are within policy parameters and
currently total $79.6 million.
3 The Unincorporated Area General Fund (1011) recommended millage rate will be
calculated based on prioritized budget requirements, while adhering to the established
control lines outlined in BCC Resolution 2026-37 and in this policy. 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 with increases
of up to 5% as outlined in BCC Resolution 2026-37. For FY 2026, those capital
transfer dollars totaled $28.5 million. Reserves continue to be funded at policy levels,
which is a minimum of one month of operating expenses.
Policy Document Page 16
4 County Manager agency program enhancement (expanded) requests will be limited to
operating new Board-approved capital facilities, priority-based level of service
adjustments, and priority capital projects. 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. Additionally, current fiscal year Board-approved level of service
adjustments and program enhancements will be identified (as expanded).
5 Continue to prioritize current infrastructure replacement and maintenance on a pay-as-
you-go basis by allocating up to a 5.0% increase to related capital transfers.
Incorporate capital financing where it is prudent and economically appropriate, in
accordance with the Debt Management Policy. No debt will be included in the adopted
budget. Instead, any financing will be addressed in the amended budget based on
policy directives.
6 Recognizing the County’s mounting future general governmental asset maintenance
responsibility, in FY 2027 at least 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.
7 Establish budget parameters for enterprise operations aligned with working capital
guidelines set by the Government Finance Officers Association (GFOA), capital
obligations from the capital improvement element (CIE), any rate or fee study
requirements, priority agency-wide expansion initiatives, and statutory or ordinance
spending limits. A thorough review of operating and capital reserve levels versus
appropriations will be part of the County Manager's budget discussions, with the aim of
ensuring sufficient recurring resources are allocated to maintain enterprise assets at a
high standard, while also setting aside resources to safeguard cash and fulfill our
fiduciary duty to public safety during a natural disaster.
8 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.
9 The FY 2027 budget planning model allocates $23.2 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 2020A Special Obligation Revenue Bond – $60 million stormwater component –
totals $2.2 million for FY 2027; thus, the net amount for stormwater capital, system
maintenance, and operating components totals $21 million.
10 The FY 2027 planning model increases the park capital and infrastructure maintenance
general governmental transfer to $8 million; the total amount after covering FY 2027
debt service of approximately $700K on the $20 million 2020A Special Obligation
Revenue Bond component is $8.7 million.
11 The FY 2027 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.
Policy Document Page 17
12 Establish General Fund (0001) contingency reserve at 3.0% of total budgeted
appropriation (excluding capital/debt transfers) and maintain the General Fund cash
balance reserve at $65.2 million, bringing total General Fund reserves to $81.9
million, an increase of $2.3 million over FY 2026. This strategic growth in General
Fund reserves is critical in safeguarding the funds cash position at the beginning of the
fiscal year, reinforcing financial strength to the rating agencies, and avoiding more
aggressive expenditure controls as budget margins tighten. It positions the County for
self-reliance amid anticipated reductions and stricter guidelines for federal and state
funding. Additionally, these reserves provide flexibility to respond to unforeseen
emergencies, natural disasters, or to advance strategic Board policy initiatives without
compromising the County’s fiscal stability.
13 Use gas tax revenue to support road capital, maintenance, and debt consistent with
budget planning and statutory requirements.
14 Continue dialogue, where appropriate, on current and future new and sustaining
revenue sources, to diversify the composition of the County’s recurring general
governmental revenue mix.
With approval of BCC Resolution 2026-37, the Board established a control line of 3.0% for
operational increases at the department level. This means that department operations for FY 2027
will be limited to up to a 3.0% increase for current programs, services, and operating transfers.
For FY 2027, the percentage operating adjustment will be translated into a dollar value for each
department head to prioritize as appropriate. Program enhancements (Expanded Requests) that fall
outside the control line will be reviewed on a case-by-case basis.
Limited general governmental operational expense increases are expected and will be appropriated
to account for new programs and services instituted during FY 2026, inflationary-adjusted fixed
costs, and maintaining a competitive compensation package. The December 2026 over December
2025 CPI for the Miami Fort Lauderdale SMSA is 2.6% and is expected to remain relatively stable
over the coming months.
BCC Resolution 2026-37 sets a limit of up to 5.0% for capital replacement and renewal transfers.
The remaining portion of general governmental budget planning dollars, ultimately determined by
established tax rates, will be applied to prioritized agency-wide capital projects that are not covered
by impact fees or the local option infrastructure sales tax, and/or county-wide capital reserves.
These prioritized projects will be presented to the Board in June. Approved projects will primarily
result in increases to capital transfers for general governmental and constitutional facilities, the
transportation network, parks, and stormwater.
For FY 2027 planning purposes and discussion in this policy document, the total General Fund
Budget is programmed to increase by $22.6 million. The following table depicts by category the
positive or negative revenue and expense changes connected with the FY 2027 General Fund
Planning Budget and the variances from FY 2026.
Policy Document Page 18
Several observations can be made from this table. As discussed throughout this document, property
tax revenue dominates general governmental funding and a 4% increase results in $19.9 million.
Of significance also is carry-forward (fund balance) at year-end, projected to increase by $3.2
million, 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's budgeted carryforward planned for the year ending 9/30/2026 results from
proactive budget planning and management, knowing that the target at year-end is between $130
million and $145 million. The wide range of general government initiatives, cash flow
requirements related to grants, statutory cash flow obligations of constitutional officers, steadily
increasing asset replacement and maintenance needs, reserving funds for future asset replacement
and maintenance, preparing the budget to issue debt if necessary during the cycle, and ensuring
budget flexibility all demand that adequate cash is available at year-end.
Under the current planning scenario, capital & debt transfers will be increased by $3.4 million.
Prioritizing budgeting for additional general governmental capital programs and reserves, using
incremental tax dollars beyond the planning scenario, will be an option.
The planned increase in all General Fund budgeted reserves represents a regular managed increase
of $2.3 million over FY 2026, consistent with policy planning standards. Impact Fee collections
remain stable, and for FY 2027, a $1.5 million investment is required from the General Fund for
growth-related debt.
Each new program, service, initiative, or capital facility incurs recurring funding obligations, and
the layering effect grows more pronounced each fiscal year. Whether funding staff and operations
for new facilities, contributing to economic development incentive zones, fulfilling approved
economic development agreements, managing stormwater programming, supporting facility
initiatives, purchasing land, fostering workforce housing, backing social services, investing in
Policy Document Page 19
public safety facilities, enhancing the transportation network, or addressing other current or future
funding needs, the County’s annual investments in public safety and efforts to serve a growing and
demanding citizenry depend on stable resources. Currently, that stable resource is primarily
property taxes.
Budget management remains a continuous balancing act, with expenditure controls always in place
and closely monitored. Similarly, execution patterns and fund transfers are examined to ensure
that appropriations are correctly implemented and used for their intended purposes.
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 funding 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.
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.
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 strive to maintain
a cash position in this fund of between 20% and 30% of actual expenses. The General Fund
carryforward position at year-end 9/30/25 totaled $181.2 million, representing 30.8% of actual
expenses for FY 2025.
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
prevalent include the Metropolitan Planning Organization (MPO), Transit, Housing,
Transportation, Stormwater, Airports, Parks, Disaster Recovery, and other areas. As of February
2026, the County had $584.8 million in active grants, plus an additional $46.8 million scheduled
to become active. Of the total $631.6 million active or soon-to-be active grants, the local match
requirement totals $75.8 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
2026, over 40 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
Policy Document Page 20
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 over $35 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
responsibilities, a Reserve Fund was created for FY 2020, setting aside dollars in incremental
amounts annually to protect the County’s future hard and soft general governmental infrastructure
investments. Regular annual deposits to this fund underscore the need to set aside dollars for future
asset maintenance obligations, given the many competing programs, services, and initiatives that
must compete for dollars from a limited resource pool. For FY 2027, a minimum of $5 million is
planned to be funded, which, based on the current reserve balance, would bring the total reserve
amount to $27.8 million. Drawing on this reserve will require Board action under guidelines
outlined in the Board’s Budget Amendment Policy.
Capital Asset Management
Each year, a significant portion of the available annual resources is allocated to maintaining and
managing the County’s general government infrastructure. This approach will continue, and these
proceeds will be directed toward specific, strategic capital projects. The current pay-as-you-go
strategy recognizes that fulfilling all new, planned, and programmed capital needs over the next
five (5) years as outlined in the Capital Improvement Element (CIE) will require some form of
financing.
The following table provides a description of historical budget allocations and what is currently
planned in FY 2027 from the General Fund budget to support ongoing asset maintenance, strategic
new capital requirements, fund growth, and non-growth debt obligations.
Transportation
39%
Facilities &
Capital
Replacements
36%
Community
Priorities
21%
Unallocated
4%
INFRASTRUCTURE SALES TAX FUNDING
Policy Document Page 21
* FY18: Additional Funding for EMS Station. FY 19 EMS Station.
For FY 2027, the planned funding scenario includes a 4% increase in taxable value. Allocations
will, of course, be subject to Board guidance on millage rates and taxable property values received
in July 2026. For context, countywide capital and debt service expenses contained within the
planning model and shown above amount to 10% of all General Fund planned appropriations for
FY 2027. When you include Constitutional Officer transfers at 46% of planned FY 2027 General
Fund expenses, and reserves, which are 11% of total General Fund expenses, these three
components account for 67% of all General Fund expenses in the planning model.
The General Fund consistently allocates significant funds to new general government capital and
asset replacement projects that benefit residents throughout the county. This level of capital
planning, generally reflected in approved budget appropriations, offers budget flexibility necessary
for effective fiscal management. Protecting the General Fund's cash reserves, maintaining
adequate funds, safeguarding the county’s high credit rating, and covering debt service will always
be top priorities as expenditure plans develop. These priorities are typically managed strategically,
and allocations are coordinated with other capital and operating expenses.
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 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 $14,994,000 $7,891,500 $27,185,300
FY 2027 $4,514,800 $15,743,700 $8,286,100 $28,544,600
* Effective in FY 2024 the transfer to Road and Bridge Fund 3081 includes funding for landscaped
median renewal and maintenance.
Policy Document Page 22
Issuing strategic variable-rate short-term and/or fixed-rate long-term debt is a crucial part of the
County’s capital improvement program. The program operates on the premise that future
residents should pay for improvements they will enjoy, not just current residents. Additionally,
the County’s strong investment-grade credit rating offers an opportunity to secure lower interest
rates.
Since October 2018, the Board has approved $736 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.
• In October 2025, an increase in the PUD commercial paper line of credit from $50 million
to $200 million was authorized to finance utility expansion and renewal projects.
• In October 2025, an increase in the transportation commercial line of credit from $30 million
to $50 million was authorized to finance transportation capital projects.
• In October 2025, a $65 million commercial paper line of credit was authorized to finance
stormwater capital projects.
Policy Document Page 23
The following chart provides a summary description of General Fund capital dollars programmed
for FY 2023 through FY 2026. This table does not include debt service transfers or the annual
long-term capital reserve.
General Fund Supported Capital Category FY 23 Budget FY 24 Budget FY 25 Budget FY 26 Budget
Medical Examiner Bldg. Expansion & Repairs $500,000 $2,200,000 $0 $100,000
Jail Windows $950,000 $500,000 $500,000 $0
Jail & other Sheriff Facility Repairs $1,000,000 $2,865,000 $5,822,000 $7,529,000
Sheriff's Gun Range Facility $0 $500,000 $0 $0
Sheriff Identification System Replacement $1,000,000 $0 $0 $0
Sheriff's Substatiom #1 N Naples $0 $400,000 $0 $0
Sheriff Caxambas Seawall $600,000 $0 $0 $0
Sheriff Telecommunication Upgrade $0 $0 $0 $800,000
Sheriff Car & Body Cameras $0 $0 $0 $2,400,000
Voting Machines $0 $0 $1,500,000 $0
Strategic Land Purchases $0 $0 $3,000,000 $0
Financial Accounting System (SAP) Upgrade $1,000,000 $1,000,000 $100,000 $100,000
Facilities Generators $0 $0 $1,300,000 $700,000
Golden Gate Golf Course $7,000,000 $2,500,000 $0 $0
DAS Facilities $0 $0 $3,500,000 $0
University Extension $0 $0 $482,000 $0
Library – Update interior $630,000 $0 $777,500 $0
Library Capital/Books $900,000 $1,000,000 $1,000,000 $1,000,000
General Building Maintenance Repairs $6,922,200 $8,000,000 $7,940,000 $3,610,000
Major Projects & Roof Replacements $0 $5,185,500 $19,974,700 $21,607,000
Video Monitoring System replacement $2,545,900 $0 $500,000 $0
General Ops Business Park (GOBP/Sheriff Forensics) $5,000,000 $0 $2,000,000 $2,730,000
Great Wolf $2,000,000 $5,500,000 $1,356,800 $1,561,200
Paradise Coast Sports Complex $4,000,000 $0 $0 $0
800MHz Radio Hardening $1,213,000 $6,000,000 $0 $0
Other General Governmental* $657,500 ($267,200) $750,000 $380,000
Pool Pump Repair and Maintenance $0 $0 $1,000,000 $0
Field Lighting $0 $0 $1,300,000 $0
Museum Capital $200,000 $200,000 $162,700 $295,800
Park Capital $3,177,500 $3,000,000 $3,150,000 $3,307,500
Boater Improvement Capital $428,300 $0 $0 $0
Transportation Capital $10,625,900 $9,200,000 $9,660,000 $9,357,000
Storm-water Capital $8,271,500 $2,800,000 $2,940,000 $3,133,400
Total $58,621,800 $50,583,300 $68,715,700 $58,610,900
* Other General Governmental - completed projects with residual funding were moved to Reserves to help fund projects
reducing the need for additional General Fund support.
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 2027
under the current planning scenario total $45.1 million, an increase of 5% from FY 2026. The
remaining planned capital allocation earmarked for general governmental infrastructure
replacement/maintenance/capital improvement projects, including the constitutionals, totals $45
Policy Document Page 24
million. Allocations are subject to change as prioritization of the FY 2027 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 lower-priority
efforts. This approach has been, and will continue to be, the management strategy given the
competition for general government resources, uncertainty surrounding the communication
services tax, heavy dependence on property taxes, and natural hazards that can affect 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 2026
and FY 2030 have a projected shortfall of over $400 million. Funding strategies, including issuing
debt backed by gas tax revenues, are part of the long-term plan for transportation CIE funding.
Proceeds would be used to finance identified transportation system assets deemed “poor” in the
inventory, capacity improvements not funded by the Local Option Infrastructure Sales Tax, and
the expansion of the eastern Collier County transportation network. In early FY 2026, the Board
approved increasing the transportation commercial paper line of credit from $30 million to $50
million for large-scale projects identified in the five-year CIE, including Collier Boulevard (Green
Boulevard to Main Golden Gate Canal), Vanderbilt Beach Road (16th Street NE to Everglades
Boulevard), and Everglades Boulevard (Vanderbilt Beach Road to Oil Well Road). Additional
financing may be needed, specific project engineering schedules will be reviewed, and the Finance
Committee, along with the department, will continue to develop the strategy and refine the plan.
Gas taxes collected in FY 2025 from all sources totaled $25.9 million. With the maturity of Gas
Tax Refunding Revenue Bonds, Series 2014, in June of last year, planned gas tax revenues will be
used for constructing and maintaining the transportation network, and will be available for debt
service payments in accordance 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 2027 to Fund (3081) are
$9.8 million and $15.7 million, respectively, which represents an increase of 5% from the FY 2026
budget. These dollars support maintenance on the roadway network, including intersection
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.
Policy Document Page 25
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 2026 account for 46% of
total General Fund budgeted expenses and 68% 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 $16.8 million and
$21.5 million across all funds for years ending FY 2024 and FY 2025, respectively. The General
Fund receives, on average, 91% to 96% of all turnback revenue.
Recommended Budget Policy: Continue this policy.
Stormwater Management Funding
The budget planning model for FY 2027 allocates $23.2 million from the General Fund and
Unincorporated Area General Fund toward stormwater infrastructure replacement ($11.6 million),
maintenance and operations ($9.4 million), and annual debt service on the November 2020 Special
BCC / Co
Attorney 3%County
Managers
Agency 28%
Road Program
Subsidy 1%
Debt / Capital
Subsidy 10%
Reserves 11%
Courts 1%
Clerk of Courts
2%
Property
Appraiser 1%
Sheriff 38%
Supervisor of
Elections 1%
Tax Collector 4%
FY 2027 General Fund Planning Budget
Policy Document Page 26
Obligation Revenue Bond Series A, a $60 million stormwater component ($2.2 million). In
October 2025, the BCC authorized a $65 million commercial paper line of credit for stormwater
infrastructure projects. Any additional debt service payments related to commercial paper draws
will be programmed from the General Fund and may reduce the allocations listed above.
Recommended Budget Policy: For FY 2027, continue general governmental funding for
stormwater 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 ad valorem taxes levied within the taxing unit,
ensuring 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 2027, 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 2027, revenue-centric budget parameters for enterprise operations will be linked to
working capital guidelines established by GFOA; capital obligations from the capital improvement
element (CIE); any stipulations from rate or fee studies; priority agency-wide expansion initiatives;
and statutory or ordinance spending limits. A thorough review of operating and capital reserve
levels versus operating and capital appropriations will be discussed during the County Manager's
budget deliberations, with the expectation that sufficient recurring resources are allocated to
maintain assets at a high standard while also setting aside resources to safeguard cash and meet
our fiduciary responsibility to public protection in the event of a natural disaster.
This concept also assumes ongoing monitoring of cash and receipts and, if needed, subsequent
operational adjustments based on cash flow.
Policy Document Page 27
Certain cost centers or programs have a net cost to the General Fund (0001) or Unincorporated
Area General Fund (1011). In these instances, where service fees offset the ad valorem impact,
there is a positive effect on the net cost to the General Fund (0001) or the Unincorporated Area
General Fund (1011). Under this revenue-focused approach, departments will be expected to meet
their fee-for-service projections. Negative fee variances will be addressed through expenditure cuts
and not subsidized by Ad Valorem taxes. Department Heads and Executive Directors, with
guidance from the County Manager, should have discretion in these situations.
Recommended Budget Policy: Adopt this Enterprise Fund and General Governmental revenue-
centric budget policy.
Program Enhancement (Expanded) Requests
For FY 2027, Departments will carefully consider program enhancement requests given the
ongoing elevated vacancy rates and legislative proposals currently under consideration that may
materially affect ad valorem revenues in future years. All program enhancement requests will be
limited to onboarding new capital facilities, priority-based service-level adjustments, and priority
capital projects. 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 review all budget-to-budget requests, including incremental capital
projects, and recommendations will be presented during the June FY 2027 Budget Workshop
discussions.
Recommended Budget Policy: Expanded requests will be limited to Board-approved priority-
based service level adjustments and priority capital projects 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.
County Manager Agency, County Attorney, and Court’s total budgeted personal services costs for
FY 2026 are $278 million or 50.7% of all County personnel costs. Constitutional budgeted
personal services for FY 2026 total $270 million, or 49.3% of County Personnel costs.
The 12-month percent change in the Consumer Price Index from December 2024 to December
2025 is 2.6% in the Miami-Fort Lauderdale area. The inflation index is generally expected to
stabilize 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 Price Level Index, an index
comparing the relative cost of living among the State’s 67 counties, is also used as a basis for
Policy Document Page 28
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 2027 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 non-union average salary in the County Manager’s Agency is
approximately $73,453, the collective recommended pay adjustments would result in an average
increase of $2,204 per employee.
Recommended Budget Policy: Allocate funds equivalent to a 2.5% base wage increase for all
non-union 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 $5.9 million for FY 2027. In
previous years, the Board of County Commissioners has approved adjustments to the
compensation plan, as detailed in the following table:
Program
Component
FY 17 FY 18
FY 19 FY 20 FY 21 FY 22 FY 23 FY24 FY25 FY26 FY26
General Wage
Adjustment
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% 2.5%
Incentive /Pay
Plan Maintenance
0.00% 0.60% 0.00% 0.50% 0.80% Avg. 8.5%
@1/1/22
0.00% 2.0% 2.0% 0.50% 0.50%
Total 3.00% Average of
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%
Average of
3%
Health Care Program and Cost Sharing
The County Health Care Program is self-funded and aims to run the health plan with the same
vigilance as a small insurance company. Like an insurance firm, the County faces a significant
budget risk within the health plan due to the unpredictability of claim cost fluctuations. Such
fluctuation is normal statistically and is caused by the fact that total medical costs are highly
sensitive to the number of claimants who incur catastrophic losses. The expected number and size
of large claims are very unpredictable and volatile. To manage and reduce this variability, the
County reinsures catastrophic losses and maintains a cautious reserve to meet Florida Department
of Insurance standards as well as to shield the General Fund from this volatility.
As of January 2026, 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.
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.
Policy Document Page 29
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. Current county and employee contributions to the fund will not be sufficient to cover
projected future costs.
2. Although current reserves exceed required minimums 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 2027.
Assuming a 7.0% inflationary trend in health care costs, if rates are not increased, the fund reserve
will be exhausted sometime during FY 2028, resulting in a shortfall of approximately $5.7 million.
The need for a dramatic rate increase may be avoided by modest action taken in FY 2027. This
increase would be the fourth 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.
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 around 90% for those meeting the necessary qualifiers. This rate far exceeds those of
large employers nationwide.
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 2027, a 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. Based on initial data, the program rate increase
Policy Document Page 30
utilized for budget development will result in an employer portion funding increase of
approximately $3.6 million for the County Manager’s Agency. Bi-monthly employee cost
increases under this scenario will be between $5.73 and $9.23 for single coverage and $14.73 and
$22.72 for family coverage, resulting in an annual increase in employee contributions of
approximately $900k. Additional funding/cost sharing options, if deemed feasible, may be
presented to the Board as part of the June FY 2027 Budget Workshop.
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 2027, 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 funding, under the philosophy that future taxpayers who will also enjoy the capital
improvements should participate in funding them, 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 9/30/25 was $561.5
million, including commercial paper draws through FY 2025. Debt outstanding reached a high of
$788.2 million in FY 2008.
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.
Policy Document Page 31
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 2026 all-in rate
currently at 3.45%. 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 be reasonably expected to be spent within a three-
year window from debt issuance; otherwise, 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 $54.4 million and represent 2.5% of the County’s
net adopted FY 2026 budget. The County continually looks for strategic and economically
feasible debt restructuring opportunities.
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 for:
Policy Document Page 32
• Collier County Water Sewer District’s 4MGD expansion of the Collier Water Reclamation
Facility (Golden Gate), deep injection well, growth-related pipelines, and NESA Program
Management. Additional anticipated financing for the upcoming 10-year planning cycle
includes funding for the construction of the 6 MGD Northeast Water Reclamation Facility
and the 10 MGD Northeast Water Treatment Plant.
• 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 2027
budget. However, the Finance Committee shall 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.
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 2026 and planned in FY 2027.
General Fund transfers to Stormwater and Transportation System improvements are accounted for
separately and are not included in this General Capital programming scenario.
0
2
4
6
8
10
12
14
16
18
20
$50 Million $75 Million $100 Million $150 MillionAnnual Debt Service ($ Millions)Project Fund
New Financing Scenarios
10 Year (3.09%)15 Year (3.71%)20 Year (4.41%)25 Year (4.61%)
Policy Document Page 33
General Appropriation FY 2026
FY 2027
Non-Growth Debt Service $10,024,800
$8,526,700
Impact Fee Trust Fund
Investments 1,819,100
1,526,800
General Governmental
Capital Projects 34,717,000
36,452,900
Parks and Museum
Transfers 3,603,300
3,783,500
Future Capital
Replacement/Maintenance
Reserve
15,198,600
≥ 5,000,000
Total $65,362,800
$55,289,900
Planned contributions in FY 2027 represent a decrease from FY 2026 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 FY
2026 totals $104.8 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 don’t utilize the local
option infrastructure sales tax funding. Current general governmental growth debt, which is paid
predominantly 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, along with interest, total $31.5 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 2027 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 $54.4 million and represent 2.5% of the County’s net adopted FY 2026 budget.
Collier County’s total unaudited principal debt outstanding as of 9/30/25 totals $561.5 million, of
which $282.2 million is general governmental and $279.3 million is enterprise-related debt. The
County’s principal debt is $226.7 million below the FY 2008 figure of $788.2 million.
Policy Document Page 34
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 include the possibility
that a grant award could 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 cash flow 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 crucial for governments to maintain adequate fund balances to address current and future risks,
such as revenue shortfalls, natural disasters, and unexpected expenses. Therefore, budgeted
reserves help safeguard the initial cash position and are a vital part of Collier County’s overall
financial management plan. They also play a key role in how external agencies evaluate 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
• 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, a 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 2016 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
2027 Planned $81,877,200 $7,538,400 10.9% 8.6%
2026 $79,622,200 $7,090,000 10.9% 7.7%
2025 $77,562,800 $6,187,700 12.5% 7.9%
2024 $72,190,100 $6,759,700 11.7% 8.7%
Policy Document Page 35
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%
Optimally, and to achieve a regular and sustained General Fund beginning fiscal year cash
position, budgeted reserves should be a minimum of $80 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 16.7% or 2
months of regular operating revenues or regular operating expenses as a baseline or floor. Based
on FY 2027 planned budget numbers, this would put Collier County's general fund reserve floor
(minimum) in the $106 million range.
Collier County has never attained a General Fund budgeted reserve position higher than the FY
2027 proposed position of $81.9 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 2027 planned capital transfers representing
10.2% 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 2027 proposed planning budget, the reserve floor and ceiling would total $50.8
million and $101.6 million, respectively. FY 2027 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.
Policy Document Page 36
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 2027 is approximately $7.3 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 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.
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 district's 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
as are 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).
Policy Document Page 37
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, such as 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 $1.5 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.
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.
Policy Document Page 38
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 2026 total $42.9 million, which represents fifty-five (55) 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 Division in Collier County covers 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 handles right-of-way disaster debris removal on County roads and
monitoring projects for Collier County in case of natural disasters, such as Hurricane Ian (Category
4, wet storm cash flow exposure of up to $45 million) in the fourth quarter of FY 2023 and
Hurricane Irma (Category 3, with a dry storm cash flow exposure of up to $65 million) in the
fourth quarter of FY 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.
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 2026 unrestricted reserves for the Solid and Hazardous Waste Management Enterprise Funds
(4070), (4073), and (4074) total $18.9 million or seventy (70) days of operating and capital.
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 2026 budgeted charges for services for future disaster
response. The division is rebuilding its disaster response fund after Hurricanes Irma and Ian. The
FY 2026 programmed advance for disaster response totaled $8 million.
Policy Document Page 39
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 (3) 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
nine (9) months of the total budgeted expenses of the current fiscal year. The extra six (6) months
of targeted reserves required compared to Fund (1013) reflects the unpredictable nature and length
of processing time for land development-related activities.
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.
Policy Document Page 40
The Group Life and Health Insurance Fund 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, 2026 (Friday), by Resolution
FY 2027 June Priority-Based Budget
Workshops
(BCC Agency/Courts and Constitutional Officers Budget Workshops)
June 18, 2026 (Thursday) and if necessary, June 19, 2026 (Friday)
The FAC Conference is June 23 – June 26, 2026, in Orlando/Orange
County.
Adoption of Tentative Maximum FY
2027 Millage Rates
July 14, 2026 (Tuesday)
Submission of Tentative FY 2027
Budget to the Board
July 15, 2026 (Wednesday)
Establish Public Hearing Dates (see note) September 3, 2026 (Thursday at 5:05 pm)
September 17, 2026 (Thursday at 5:05 pm)
Note: The School Board has priority in establishing public hearing dates for budgets. The School
Board’s final budget hearing is tentatively scheduled for Wednesday, September 9, 2026.
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, 2026, budget submittal dates for the Sheriff, the Supervisor of Elections, and
the Clerk.
Continuing Routine Budget Policies for FY 2027
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 a program
enhancement (expanded) request.
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.
Policy Document Page 41
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 transfers, 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 65% of the total FY 2026 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 include reliance on the
tourism industry, reliance on sales tax revenue, and the ongoing threat of hurricanes and wildfires.
For Florida coastal communities, rating agencies recommended a minimum cash balance equal to
15% of total General Fund expenditures. Of course, this figure and recommendation are 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, 2025, the actual General Fund cash and
cash equivalents balance totaled $181.2 million, an increase of $4.7 million over the year ending
September 30, 2024. The FY 2025 year-end cash position represents approximately 30.8% of
actual FY 2025 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 2027.
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 2026, 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 2026. This method and percentage
will continue for FY 2027. One and three-quarter percent (1.75%) of Solid Waste tipping fees were
applied in FY 2026, and this method and percentage are planned in FY 2027. 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.
Debt Service: Any capital projects financed through borrowing shall have a repayment period
limited to the asset's useful life.
Policy Document Page 42
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 debt, 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 in the table below:
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 $104 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.
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
0.4732
0.0000
0.2000
0.4000
0.6000
0.8000
1.0000
1.2000
MillageGeneral Fund Capital Equivalent Millage History
(FY 2016 -FY 2026)
Policy Document Page 43
Three-Year Budget Projections
Ad Valorem Tax Funds
(FY 2027 - FY 2029)
Corporate Financial & Management Services staff prepare a three-year projection of General Fund
and Unincorporated Area General Fund revenues and expenditures annually to improve financial
planning and to understand the long-term impact of funding decisions. These projections are
complemented by a trend analysis of revenues and expenses, which concludes the General Fund
and Unincorporated Area General Fund sections.
The following 3-year budget projections are for the General Fund (0001) and the Unincorporated
Area 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
2027, 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 primarily aims to reduce risk. This includes minimizing
the risk of an economic downturn that could stagnate resources, as well as organizational risk,
which could exponentially affect operations and capital resource allocation if resources diminish.
Significant future resources need to be allocated to capital maintenance in various areas. We have
addressed the needs for heavy equipment, public safety ambulances, and general vehicle
replacements. However, substantial asset maintenance and replacement needs still exist,
particularly for general government buildings, park system infrastructure, constitutional officer
3.5645 3.5645 3.5645 3.5645 3.5645 3.5645 3.5645 3.5645
3.2043
3.0107 3.0107
2.6000
2.8000
3.0000
3.2000
3.4000
3.6000
3.8000
FY16 FY17 FY18 FY19 FY20 FY21 FY22 FY23 FY 24 FY 25 FY 26
General Fund Millage History Tax Rates
(FY 2016 to FY 2026)
Policy Document Page 44
capital requirements, and other capital functions like information technology upgrades, enterprise
resource planning software updates, and soft infrastructure needs. Additionally, maintaining
existing stormwater infrastructure remains critical. In the absence of a dedicated revenue source
for FY 2027, stormwater maintenance and capital will be funded through general governmental
appropriations.
The Board directed a departure from the millage-neutral rate in FY 2024 (Tax Year 2023) and
instead adopted the rolled-back rates of 3.2043 and 3.0107 for FY 2024 (Tax Year 2023) and FY
2025 (Tax Year 2024), respectively. For FY 2026 (Tax Year 2025) the Board adopted the millage-
neutral rate of 3.0107. The table below illustrates taxpayer savings when compared to the FY
2023 (Tax Year 2022) General Fund millage rate of 3.5645.
Tax Year General Fund
2023 $ 49,704,016
2024 $ 84,316,065
2025 $ 91,114,414
Total $ 225,134,495
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, with proposed legislation aimed at limiting this revenue source 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 January 8, 2026, Ad Valorem Estimating Conference, the projected
tax base increase for FY 2027 (Tax Year 2026) is 4.1%. Taxable value in FY 2028 (Tax Year
2027) is projected to increase 5.1%, and taxable value in FY 2029 (Tax Year 2028) is projected to
increase 6.0%. The following table illustrates these projected increases in ad valorem revenue at a
millage-neutral for fiscal years 2027, 2028, and 2029.
General Fund
Additional Budgeted Ad Valorem Revenue Projection Each Year
(Based on State Ad Valorem Projections)
FY 2027 $18,932,200 @ 4.1% Increase
FY 2028 $26,387,600 @ 5.1% Increase
FY 2029 $32,468,300 @ 6.0% Increase
A millage-neutral General Fund tax levy would yield an additional $77.8 million in ad valorem
revenue over the three-year period.
The Property Appraiser will provide preliminary taxable value estimates for FY 2027 on June 1,
2026. 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:
Policy Document Page 45
FY 2027 Significant Expense Assumptions
A priority-based operating budget, utilizing a planning increase of 4% 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 $5.9 million.
• Appropriate dollars effectuate the required 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 $36.5 million for general governmental infrastructure
replacement/maintenance.
• At least a $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 $1.5 million.
• Stormwater maintenance, operations, and transfers for capital and debt service
payments planned at $9.6 million.
• General Fund transfer dollars supporting road construction and maintenance funded at
$9.8 million.
• General Fund support of EMS Operations established at $32.1 million.
• Full support for Transportation Operations from the General Fund (0001) exclusively
in the amount of $29.7 million.
• Continued corporate IT capital funding.
8.5%
10.0%
8.4%
5.6%5.5%6.4%5.6%
16.7%
13.0%
10.2%
8.5%
4.1%
5.1%6.0%
0.0%
5.0%
10.0%
15.0%
20.0%
Historical and Projected Changes in Collier County Taxable Values
FY 2016 -FY 2029
Policy Document Page 46
• Mandates to be absorbed within operating budgets, including Constitutional Officers,
if possible.
Significant Revenue Assumptions
• FY 2026 ad valorem tax revenue forecast is 96.25% of actual taxes levied. FY 2026
forecast totals $477.9 million – a reduction of $18.6 million from the adopted budget.
Collections are within the 5% statutorily budgeted revenue reserve.
• Planned taxable value increase of 4% produces a levy of $516.5 million for FY 2027.
• Sales tax revenue forecast for FY 2026 is projected at $63 million, a reduction of $1.9
million from the adopted budget. FY 2027 budgeted revenue is planned at $64.3 million,
which is aligned with Department of Revenue projections.
• State revenue sharing forecast for FY 2026 is conservatively projected at $16.3 million.
The FY 2027 budget is projected at $17.4 million, which aligns with the Department of
Revenue estimates.
• Property taxes, sales taxes, and revenue sharing deposited in the General Fund represent
94.2% of all recurring operating revenue.
• The Constitutional Officer turn-back is a conservative budget estimate, and for FY 2027,
$8.6 million is planned. Turnback to the General Fund at the year ending 2025 totaled
$19.9 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 2027 is conservatively planned at $1,200,000.
Policy Document Page 47
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 2027 is up $935 thousand. 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 2027, the General Fund contribution to road construction and maintenance
is planned to total $9.8 million which equates to a 5% increase over the FY 2026 budgeted transfer
of $9.4 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.
$15.0
$17.6 $18.0 $18.0 $18.0
$21.4
$25.3
$29.4 $30.4
$31.2 $32.1
$33.8 $35.5
$0
$5
$10
$15
$20
$25
$30
$35
$40
MillionsGeneral Fund Support of EMS
(FY 2017 -FY 2029)
Policy Document Page 48
FY 2028
An operating budget in FY 2028 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 2028
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 2028 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 $35 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 2029
An operating budget in FY 2029, 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 2029 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 manage the budget in real time and will mitigate unplanned
equity reductions. But imagine a scenario where primary revenue sources like ad valorem or state-
Policy Document Page 49
shared 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
Policy Document Page 50
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 (Tax Year 2023) and FY
2025 (Tax Year 2024) and adopted the rolled-back rate of 0.7280 and 0.6844, respectively. For
FY 2026 (Tax Year 2025), the Board adopted the millage neutral rate of 0.6844. The table below
illustrates taxpayer savings when compared to the FY 2023 (Tax Year 2022) Unincorporated Area
General Fund rate of 0.8069.
Tax Year General Fund
2023 $ 49,704,016
2024 $ 84,316,065
2025 $ 91,114,414
Total $ 225,134,495
Based on estimates from the January 8, 2026, Ad Valorem Estimating Conference, the projected
tax base increase for FY 2027 (Tax Year 2026) is 4.1%. Taxable value in FY 2028 (Tax Year
2027) is projected to increase 5.1%, and taxable value in FY 2029 (Tax Year 2028) is projected to
increase 6.0%. The following table illustrates the projected increase in ad valorem revenue at a
millage-neutral rate for fiscal years 2027, 2028, and 2029.
0.8069 0.8069 0.8069 0.8069 0.8069 0.8069 0.8069
0.7280
0.6844 0.6844
0.6000
0.6500
0.7000
0.7500
0.8000
0.8500
MillageUnincorporated MSTD General Fund (1011) Millage History
(FY 2017 to FY 2026)
Policy Document Page 51
Unincorporated
Area
General Fund
Additional Budgeted Ad Valorem Revenue Projection Each Year
(Based on State Ad Valorem Projections)
FY 2027 $2,943,000 - 4.1% Increase - Current Year Net New TV
FY 2028 $3,810,900 - 5.1% Increase - Current Year Net New TV
FY 2029 $4,712,100 - 6.0% Increase - Current Year Net New TV
Based on these estimates, a millage-neutral Unincorporated General Fund tax levy would raise an
additional $11.5 million over the three-year period.
FY 2027
The FY 2027 budget projection is based upon a planning scenario that includes a 4.0% 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 $30.1 million from the Unincorporated Area General Fund are
planned for FY 2027. These transfer dollars are programmed for Park improvements, Pelican Bay-
Clam Pass, Transportation system enhancements, IT, Motor Pool, and Stormwater infrastructure.
In FY 2027, a priority-based budgeting approach will be utilized. Although expenditures are
planned for all significant areas, the priority-based budgeting approach may reallocate funding
across departments to optimize resources and align funding with budget priorities.
FY 2028
The model assumes planned taxable value increases will result in a 3% increase, which could result
in a fund balance reduction of $3 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 2029
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 $2.5 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
manage the budget in real time and will mitigate unplanned equity reductions. But imagine a
scenario in which major revenue sources, such as 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.
Policy Document Page 52
Unincorporated Area General Fund Trend Analysis