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Backup Documents 02/26/2013 Item #11GORIGINAL DOCUMENTS CHECKLIST & ROUTING SLIP TO ACCOMPANY ALL ORIGINAL DOCUMENTS SENT TO THE BOARD OF COUNTY COMMISSIONERS OFFICE FOR SIGNATURE Print on pink paper. Attach to original document. Original documents should be hand delivered to the Board Office. The completed routing slip and original documents are to be forwarded to the Board Office only after the Board has taken action on the item.) ROUTING SLIP Complete routing lines #1 through #4 as appropriate for additional signatures, dates, and /or information needed. If the document is already complete with the exception of the Chairman's signature, draw aline throu h routing lines #1 throu #4, complete the checklist, and forward to Sue Filson line #5). Route to Addressee(s) (List in routing order Office Initials Date 1. •4 —$ c'E Initial Applicable) 2. February 26, 2013 Agenda Item Number l l& 3. signed by the Chairman, with the exception of most letters, must be reviewed and signed 4. Jeffrey Klatzkow County Attorney's Office _-X%K Az:\V3 5. Commissioner Hiller BCC h 1 6. Minutes and Records Clerk of Court's Office PRIMARY CONTACT INFORMATION (The primary contact is the holder of the original document pending BCC approval. Normally the primary contact is the person who created /prepared the executive summary. Primary contact information is needed in the event one of the addressees above, including Sue Filson, need to contact staff for additional or missing information. All original documents needing the BCC Chairman's signature are to be delivered to the BCC office only after the BCC has acted to approve the item.) Name of Primary Staff Pat Lehnhard Phone Number 252 -8973 Contact •4 —$ c'E Initial Applicable) Agenda Date Item was February 26, 2013 Agenda Item Number l l& Approved by the BCC signed by the Chairman, with the exception of most letters, must be reviewed and signed Type of Document Resolution Number of Original Attached resolutions, etc. signed by the County Attorney's Office and signature pages from Documents Attached 1 INSTRUCTIONS & CHECKLIST 1: Forms/ County Forms/ BCC Forms/ Original Documents Routing Slip WWS Original 9.03.04, Revised 1.26.05, Revised 2.24.05 Initial the Yes column or mark "N /A" in the Not Applicable column, whichever is Yes N/A (Not appropriate. Initial Applicable) 1. Original document has been signed/initialed for legal sufficiency. (All documents to be Yes signed by the Chairman, with the exception of most letters, must be reviewed and signed by the Office of the County Attorney. This includes signature pages from ordinances, resolutions, etc. signed by the County Attorney's Office and signature pages from contracts, agreements, etc. that have been fully executed by all parties except the BCC Chairman and Clerk to the Board and possibly State Officials. 2. All handwritten strike- through and revisions have been initialed by the County Attorney's N/A Office and all other parties except the BCC Chairman and the Clerk to the Board 3. The Chairman's signature line date has been entered as the date of BCC approval of the Yes document or the final negotiated contract date whichever is applicable. 4. "Sign here" tabs are placed on the appropriate pages indicating where the Chairman's Yes signature and initials are required. 5. In most cases (some contracts are an exception), the original document and this routing slip Yes should be provided to Ian Mitchell in the BCC office within 24 hours of BCC approval. Some documents are time sensitive and require forwarding to Tallahassee within a certain time frame or the BCC's actions are nullified. Be aware of your deadlines! 6. The document was approved by the BCC on 2/26/13 (enter date) and all changes made during the meeting have been incorporated in the attached document. The County Attorney's Office has reviewed the changes, if applicable. 1: Forms/ County Forms/ BCC Forms/ Original Documents Routing Slip WWS Original 9.03.04, Revised 1.26.05, Revised 2.24.05 11� MEMORANDUM Date: March 1, 2013 To: Pat Lehnhard, Administrative Assistant County Manager's Office From: Teresa Cannon, Deputy Clerk Minutes & Records Department Re: Resolution 2013 -59 Attached for your records is a copy of the Resolution referenced above, (Item #11G) adopted by the Board of County Commissioners on Tuesday, February 26, 2013. The original has been kept by the Board's Minutes and Records Department and will be kept as part of the Boards Official Record. If you have any questions, please feel free to contact me at 252 -8411. Thank you iic RESOLUTION NO. 2013 59 A RESOLUTION PURSUANT TO SECTION 129.03, FLORIDA STATUTES, REQUIRING THE FY 14 TENTATIVE BUDGETS OF THE SHERIFF, THE SUPERVISOR OF ELECTIONS AND THE CLERK TO BE SUBMITTED TO THE BOARD OF COUNTY COMMISSIONERS BY MAY 1, 2013. 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. NOW, THEREFORE, 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 of Elections and the Clerk of the County of Collier, Florida, are hereby required to submit their respective tentative budgets for the FY 14 fiscal year to the Board of County Commissioners by May 1, 2013. This Resolution shall be effective on its adoption. This Resolution adopted this 26th day of February, 2013, after motion, second and majority vote. ATTEST: DWIGHTrZC, Clerk to as to Chairm�rn's 'A lit" : and legal Jeffrey A. County A BOARD OF COUNTYFOMMISSIONERS COLLIER COUNTY, LORIDA BY . _ Chairwoman , Esq. Item # It 4-- Agenda .2 Date Date 3 t i 11G Board of Collier County Commissioners Donna Fiala Georgia A. Hiller, Esq. Tom Henning Fred W. Coyle Tim Nance District 1 District 2 District 3 District 4 District 5 March 1, 2013 Honorable Dwight Brock, Clerk of Courts 3315 E. Tamiami Trail Courthouse Building, 6t' Floor Naples, FL 34112 Dear Mr. Brock: On February 26, 2013, the Board of County Commissioners (Board) adopted budget policies for the preparation, review and adoption of the FY 14 Collier County budget. A complete copy of the Board's adopted FY 14 Budget Policy is attached for your budget preparation. Budget Instructions will be sent out under separate cover on or about March 8, 2013. Budget Submittal Date The Board adopted a resolution, in accordance with Chapter 129.03(2), Florida Statutes, requiring the tentative budgets of the Sheriff, Supervisor of Elections and the Clerk of Courts to be submitted to the Board by May 1, 2013. Budgets for the Tax Collector and Property Appraiser shall be submitted pursuant to statutory deadlines. Please provide 10 copies of your budget; one copy for each County Commissioner and five (5) copies for the Office of Management and Budget. Budget Workshop/Review and Advertised Public Hearing Dates The Board established budget workshop dates on Thursday, June 20, 2013 (9:00 am to 5:00 pm) and Friday, June 21, 2013 (9:00 am to 5:00 pm). While constitutional officer budget reviews are generally held on Friday morning, this schedule may change. As a result, please set aside both days on your calendar and be prepared to present on Thursday if necessary. The Board also established September 5, 2013 and September 19, 2013 as advertised public hearing dates for the FY 14 budget pursuant to TRIM statutes. 3299 Tamiami Trail East, Suite 303 • Naples, Florida 34112 - 5746.239- 252 -8097 • FAX 239 - 252 -3602 11G Honorable Dwight Brock, Clerk of Courts March 1, 2013 Page Two If you have any questions regarding this communication, contact the Office of Management and Budget at 252 -8973. Thank you for your cooperation and assistance as we begin the FY 14 budget process. ►a Georgia's. Hiller',, Esq., Chairwoman Board of County Commissioners cc: Board of County Commissioners Leo Ochs, County Manager Mark Isackson, Corporate Financial Planning & Management I1G Fiscal Year 2014 Adopted Budget Policies Collier County Board of County Commissioners February 26, 2013 Historically, the annual budget policy approved by the Board of County Commissioners (Board), has consisted of three (3) sections which are "annual budget policies to be adopted ", "continuing budget policies to be reaffirmed" and a "three year forecast for the General Fund and the Unincorporated Area General Fund ". While it is suggested that this format continue, the policy document will also cover significant budget influences and discuss the strategies which may be utilized to address these influences as the budget document evolves for FY 2014 and beyond. The FY 2014 budget will likely be prepared within an improving economic environment which saw taxable values County wide rise slightly for the first time since FY 2008. Median home prices have stabilized, visitation to the destination increased year over year, new construction permitting is up and the County's unemployment rate is dropping. While these are positive economic signs, the new economic reality of a global economy dictates that continued caution be exercised as the County moves forward with future financial planning. Collier County continues to exhibit proactive and fiscally conservative budget practices which have included Board directed policy guidance requiring no increases in property tax rates; growth in General Fund reserves; fully funded and policy compliant debt management; no new fees or service charges to County residents; no planned County Manager Agency layoffs; facility closures; or front line operating service cuts; and continued high priority asset maintenance and equipment replacement. The fiscal year 2014 budget will once again challenge management and the elected leadership to allocate scarce resources in a manner which maintains critical front line services and sustains those services customarily associated with the standard and quality of life demanded by Collier County residents and visitors. Annual Budeet Policies Adopted Significant Budget Influences: Each fiscal year based upon fiscally conservative budgetary guidance, limited resources are allocated to competing services, programs and projects. Within the pyramid of service and program delivery, significant and recurring resources have been devoted to public safety, public health, debt management, reserve growth and replacement of critical priority infrastructure and equipment. Ad valorem taxes will once again dominate the County's budgetary revenue mix — comprising about 45% of total net annual operating revenue and 65% of General Fund revenue sources. Sources of Current County Government Operating Revenues all Funds (FY 2013) Bond Proceeds/ Impact Fees Interest/Fine Service 3% 1% Charges 32% Inter) Reve 4,. Assessments 7% General C —A 81% 11G FY 2013 General Fund Revenue Sources Property Tax by Major Funds MSTU's 5% Pollution :ontroi 0% corporated !a General ind 10% ?rvation Collier 4% Sales Tax 9% State Revenue Sharing 2% ergov'tal roues 0% Permits, irges 4% 14% Misc.1% Thus, significant attention is paid to ad valorem taxes and those factors that can influence millage rate and tax levy decisions. For FY 2014, significant influences include; • Pay off of all remaining Conservation Collier bonded debt in FY 13; elimination of the voter approved $.25 per $1,000 of taxable value levy for FY 14; and continued ability to aggressively restructure and pay down our general governmental and enterprise debt which at 9/30/12 had a principal outstanding of $627M, a reduction of $48.7M from 9/30/11. Interest rates remain at historically low levels. • Protecting beginning year General Fund and Unincorporated Area General Fund cash balance. • Maintaining the County's investment quality credit rating. • Extent of discretionary operational cuts to agencies and departments which are funded within the General Fund and Unincorporated Area General Fund necessary to offset high priority public health and safety programs; asset maintenance and replacement; and non discretionary expenses such as health insurance, fuel, and utilities. • Level of General Fund operating and capital support extended to Constitutional Officers. • General Fund support for new or re- prioritized operating and capital initiatives such as beach renourishment/pass maintenance; emergency destination marketing; asset management; economic development; EMS helicopter; ambulances; Project (25) digital enhancements to the public safety radio system; and unfunded mandates including health care coverage for part time employees working at least 30 hours a week. 2 Ad Valorem Ad Valoret 65% 45% Transfers fro Consitutional Officers 2% Interfund Gas /Sales Transfers and Tax Payments 3% 8% Property Tax by Major Funds MSTU's 5% Pollution :ontroi 0% corporated !a General ind 10% ?rvation Collier 4% Sales Tax 9% State Revenue Sharing 2% ergov'tal roues 0% Permits, irges 4% 14% Misc.1% Thus, significant attention is paid to ad valorem taxes and those factors that can influence millage rate and tax levy decisions. For FY 2014, significant influences include; • Pay off of all remaining Conservation Collier bonded debt in FY 13; elimination of the voter approved $.25 per $1,000 of taxable value levy for FY 14; and continued ability to aggressively restructure and pay down our general governmental and enterprise debt which at 9/30/12 had a principal outstanding of $627M, a reduction of $48.7M from 9/30/11. Interest rates remain at historically low levels. • Protecting beginning year General Fund and Unincorporated Area General Fund cash balance. • Maintaining the County's investment quality credit rating. • Extent of discretionary operational cuts to agencies and departments which are funded within the General Fund and Unincorporated Area General Fund necessary to offset high priority public health and safety programs; asset maintenance and replacement; and non discretionary expenses such as health insurance, fuel, and utilities. • Level of General Fund operating and capital support extended to Constitutional Officers. • General Fund support for new or re- prioritized operating and capital initiatives such as beach renourishment/pass maintenance; emergency destination marketing; asset management; economic development; EMS helicopter; ambulances; Project (25) digital enhancements to the public safety radio system; and unfunded mandates including health care coverage for part time employees working at least 30 hours a week. 2 11G • Extent of capital, debt and operational transfer dollars expended by the General Fund and Unincorporated Area General Fund. • Proper level of resources to cover the organizations priority asset maintenance and equipment replacement obligation. • Extent of non ad valorem revenue projected to support operations such as sales tax, state shared revenues and departmental revenue from general fund operations. Taxable Value and Millage Targets for the County -Wide and MSTD General Fund Collier County has lost 29% of its taxable value since FY 2008. While it has taken six years to erode the taxable value base, recovery to FY 2008 levels will take significantly longer. The following table provides a history of County wide and unincorporated area (MSTD) taxable value over the past six years (tax year 2007 -2012) as well as the budget planning projection for tax year 2013 (FY 2014). Tax Year County Wide Taxable Value County Wide % inc. dec Unincorporated Area Taxable Value Unincorporated Area % inc. dec. 2007 Y 2008 $82,542,090,227 -------- - - - - -- $53,397,231,747 ------- - - - - -- 2008 (FY 2009 ) $78,662,966,910 (4.7 %) $50,860,023,424 (4.8 %) 2009 Y 2010 $69,976,749,096 11.0% $44,314,951,279 12.8% 2010 (FY 2011 ) $61,436,197,437 12.2 %) $38,146,886,403 13.9 %) 2011 (FY 2012) $58,202,570,727 5.2 %) $36,013,774,963 5.6 %) 2012 (FY 2013) October DR 422 Number $58,497,796,462 .51% $36,031,604,374 .05% 2013 (FY 2014) $58,497,796,462 Flat $36,031,604,374 Flat The State Ad Valorem Estimating Conference released numbers in December 2012 for the 2013 tax year (FY 2014). The report projects that Collier County taxable values on July 1, 2013 will increase 2.1 %. For budget planning purposes at this time a flat taxable value scenario will be used. Any positive difference in taxable value and the resulting increase in ad valorem revenue can be applied to General Fund and Unincorporated Area General fund reserves and/or operating and capital programs and services as directed by the Board. The General Fund and MSTD 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 eight years are shown in table form below. ills e Area FY 06 FY 07 FY 08 FY 09 FY10 FY 11 FY 12 FY 13 IG eneral Fund $3.8772 $3.5790 $3.1469 $3.1469 $3.5645 $3.5645 $3.5645 $3.5645 nincorporated Area $.8069 $.8069 $.6912 1 $.6912 1 $.7161 $.7161 $.7161 $3161 11G Taxable value County wide from that certified by the Property Appraiser on July 1, 2012 to the recapitulation report in October 2012 (DR 422) decreased .17% or $101,083,090. This taxable value decrease equates to $360,300. Taxable values between June and the final numbers post Value Adjustment Board (VAB) do change and this resulting change has an impact upon the succeeding year's value. Projecting a flat taxable value under a FY 2014 millage neutral rate ($3.5645) will likely result in the same General Fund dollar levy as FY 2013 or $208,875,700, assuming continued increases in new construction taxable value and recovery of the taxable value loss which occurred between July and October 2012. Taxable value within the unincorporated area (MSTD) General Fund decreased .24% or $85,422,300 from the certified value in July to the October recapitulation report (DR 422). This decrease equates to a dollar value of $61,200. Projecting a flat taxable value within the unincorporated area under a FY 2014 millage neutral rate ($.7161) will likely result in the same dollar levy as FY 2013 or $25,863,400, assuming continued increases in new construction taxable value and recovery of the values lost between July and October 2012. It is likely that budgeted ad valorem revenue will be millage rate driven rather than a strategy of setting the millage rate based upon a targeted ad valorem revenue number. The County Manager is proposing to submit one FY 2014 millage neutral budget along with service level and related budgetary and millage implications. Holding the General Fund millage rate at $3.5645, for the fifth consecutive fiscal year in FY 2014, (millage neutral scenario) under a flat taxable value planning scenario will likely result in continued targeted operating cuts to offset expected increases in health insurance, electricity, internal service charges and other non discretionary costs. Likewise, targeted cuts will also be required for operations within the unincorporated area General Fund. Any combination of operating and capital cuts will not be taken across the Board, rather cuts will be targeted and measured based upon need, priorities and service levels. Also noteworthy and concerning is the continued necessity to engage in County Manager agency mid — year expenditure cuts to ensure that a sufficient amount of beginning fiscal year cash is available within the General Fund (001) and Unincorporated Area General Fund (111). Planned mid -year General Fund cuts during FY 2013 amount to approximately $5,000,000. These FY 2013 cuts consist primarily of redirected capital transfer dollars back to the General Fund due to project close outs, budgetary savings from recently bid projects and excess year ending FY 2012 fund balance over budget within certain funds linked to the General Fund. The table below identifies the level and extent of adopted and mid -year budget reductions since FY 2009 to achieve a millage neutral tax rate budget and maintain adequate General Fund cash balances consistent with an investment quality credit rated organization. 4 11G General Fund Budget Reductions $10 $0 FY FY FY 14 -$10 N c -$20 2 -$30 Total Reductions $115,062,300 -$40 ■ Reductions for the Adopted Budget ■ Mid -Year Budget Reductions It is expected that this level of budgetary reduction and cash management will be necessary and continue in FY 2014 and beyond to preserve general fund reserves; protect against revenue shortfalls and reliance upon ad valorem tax revenue; guard against any assault by the state legislature on the ad valorem tax structure; and fulfill public expectation to maintain/enhance service levels. Within this environment and without the continuation of mid -year cuts coupled with changes to the County's General Fund revenue structure and/or service level reductions, a substantial erosion of General Fund equity will become evident at fiscal year ending 2014, continue into FY 2015 and progressively deteriorate as shown within the three year General Fund Analysis on Page 23. For FY 2014, budgeted capital transfers including that component required to support continuing growth and non growth related debt obligations will total $27.7 million — a $1.2M decrease from FY 2013. The 1 /3rd mil or less equivalent transfer will once again primarily support debt service. It is projected that the 1 /3rd mil equivalent transfer will total $11.0 million with approximately $8.8 million committed to pay debt. Inclusive within this figure is a $4.9 million growth related debt gap due to reduced impact fee collections. The General Fund transfer to support much needed intersection maintenance, resurfacing, bridge repairs and other network infrastructure maintenance is recommended to remain at $11.2 million. The storm water transfer will be sized at the equivalent of 0.1000 mils and this transfer is projected to total $5.5 million. Also programmed and new for FY 2014 are certain priority public safety capital transfers totaling $6,800,000 covering ambulance replacement, phased upgrades to the county -wide 800MHz platform and year one of a two year set aside to replace the EMS helicopter in FY 2015. Through our aggressive debt restructuring and normal debt retirement, non growth related revenue bond debt service payable from all General Fund legally available non ad valorem revenue sources has decreased 51 % or over $4M since FY 2010. Adopted Board Policy: cy. Develop a General Fund (001) and unincorporated area General un (I 11) budget for FY 2014 at millage neutral and provide the Board with a summary divisional description of what millage neutral purchases in terms of service, the cost and description of services cut, and the corresponding ad- valorem impact to restore any cut service. General Fund Budget Allocations by Aeencv and Component The purpose of this allocation is to identify those critical 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 will share in any budget reductions necessitated by reductions in property tax revenues, new tax reform initiatives, reductions in state shared revenue and unfunded mandates. FY 2013 Percent of General Fund Budget Property Appraiser 2% Supervisor of Elections 1% Clerk of Courts 2% Courts 0% Tax Collector 4% Reserves 8% BCC / Co Debt/ Capital Attorney 3% Subsidy 6% Road Program Airport Authority Subsidy 4% 0% Considering that transfers to the Constitutional Agencies in FY 2013 account for 52.7% of total General Fund budgeted expenses and 78.3% of the General Fund ad valorem budgeted revenue, their participation in any necessary reductions due in part to unexpected ad valorem revenue shortfalls or unforeseen unfunded mandates is essential to achieving a millage neutral budget. It should be noted that these expense percentages are gross figures and do not account for statutorily required year ending constitutional officer turn back. This turn back revenue is budgeted and forecast each year. Constitutional turn back revenue totaled $8,113,901 and $10,322,248 respectively for FY 2011 and FY 2012. Adopted Budget Policy: Continuation of this policy. Millaae Tarizets for Collier Countv MSTU's/MSTD's With a simple majority vote in FY 2014, the Board has the latitude to levy the rolled back millage rate (tax neutral), plus an inflationary adjustment based on the growth in Florida per capita personal income. 6 I IG MSTU's are created by ordinance and generally there are provisions governing the maximum millage rate that can be levied. Local ordinance is the control, even if the rolled back rate exceeds the ordained millage cap. There are twenty two (22) dependent MSTU's or MSTD's active under Collier County's taxing umbrellas which are managed by staff. Of these, thirteen (13) have advisory boards .which provide recommendations to the Board of County Commissioners. Adopted Budget Policy: For FY 2014, it is suggested that those MSTU's/MSTD's without advisory board oversight be limited to a millage neutral position unless staff presents a compelling reason for additional funds during budget presentations. Additionally, it is suggested that MSTU's and MSTD's with advisory board oversight be allowed to consider tax rate options ranging from millage neutral to tax neutral (rolled back) depending upon program requirements and taxable values with specific advisory board recommendations offered during the budget review cycle. Revenue Centric BudEets 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 which 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. This concept also presumes continual monitoring of cash and receipts and, if necessary, subsequent operational adjustments dictated by cash flow. As such, ad valorem agency limitations suggested above will not apply. Certain cost centers or functions have a net cost to the General Fund (001) or MSTD General Fund (111). In these instances where fee for services offset the ad valorem impact, then the budget reduction guidance should account for this positive impact upon the net cost to the General Fund (001) or to the MSTD General Fund (111). Under this revenue centric approach, Divisions will be held to their departmental fee for service projections and any negative fee variances will be addressed through service cuts and not subsidized by Ad Valorem taxes. Division Administrator discretion upon guidance by the County Manager should be afforded in these scenarios. Adopted Budget Policy: Continuation of this revenue centric budget policy. Limitations on Expanded Positions to Maximize Oreanizational Efficiencies We are faced with the continuing challenge of conducting the business of government within the context of evaluating strategic organizational efficiencies and re- alignments required to match service demands with available resources. Consequently, as part of any decision to make major organizational, service or other changes, proper analysis is undertaken. This analysis includes review of the customer needs, the organizational structure, the underlying processes and service delivery models. 7 I 1U Outcomes include streamlined business processes, elimination of any wasted effort in the processes, and a management and staffing structure that is expected to be able to deliver the required services. For FY 2014, it is possible that expanded position requests will be recommended, especially within various growth management division functions in order to facilitate the customer expected delivery of permitting, inspections and plan review services. Otherwise, to the extent possible, no net new positions in the County Manager's Agency will be continued for FY 2014. This proposed guidance continues the agency freeze on new hires funded with ad valorem funds with limited exceptions authorized by the County Manager. Remember that the budget document only portrays those positions funded within the agency. Adopted Budget Policy: Continuation of this budget policy. Compensation Administration The philosophy of Collier County Government is to provide a market -based compensation program that meets the following goals: 1. Facilitates the hiring and retention of the most knowledgeable, skilled and experienced employees available. 2. Supports continuous training, professional development and enhanced career mobility. 3. Recognizes and rewards individual and team achievements. These goals, while important, are mitigated somewhat by available financial resources. Focus will shift on retaining the employment base where possible given revenue parameters and maintaining the expertise and professional development of the work force. Adopted Budget Policy: Recognizing current resource planning, a salary adjustment for FY 2014 is not proposed. However, on an event driven basis most likely triggered by taxable values higher than anticipated, the County Manager may propose some form of employee compensation adjustment. In previous years the Board of County Commissioners, has authorized adjustments to the compensation plan as shown within the following table. Program Component FY 07 FY 08 FY 09 FY 10 FY 11 FY 12 FY 13 FY 14 Cost of Living 4.70% 4.10% 4.20% 0.00% 0.00% 0.00% 2.00% 0.00% Awards Program 1.50% 1.50% 0.00% 0.00% 0.00% 0.00% 0.00% 0.00% Pay Plan Maintenance 025% 0.25% 0.00% 0.00% 0.00% 0.00% 0.00% 0.00% Total 6 14.20% 10.00% 10.00% 1 0.00% 1 2.00% 0.00% Health Care Program Cost Sharing Collier County provides a self - funded Group Benefits Plan for health care and prescription drug coverage. Coverage under the Plan extends to all County employees, with the exception of the Sheriff's Office, which provides its own self - funded plan. Nationally, as well as here in Florida, medical plan costs, and the premium dollars required to fund them, continue to increase annually. The County's medical plan is similarly impacted by these rising costs. 11G For FY 2013, the County experienced a 4.4% health insurance rate increase. This increase resulted in an average annual employer premium increase of $528 and an average employee premium increase of $144. It is anticipated that health plan costs will increase for FY 2014. A combination of premium increase and plan design changes will be required to hold any employee premium contribution increases to no more than that experienced in FY 2013. It should be noted that employer health insurance contribution increases are absorbed within operating appropriations requiring general budget reductions in other program areas under a flat taxable value planning scenario for those operations funded by ad valorem revenue With the objective of mitigating increases to the plan, the County will continue to emphasize participation in existing wellness program, proper structuring of reinsurance to manage adverse plan impacts and prudent plan management. Historically Board budget guidance has required all agencies to uniformly share health insurance contributions between employers and employees. If all agencies maintained the recommended cost distribution percentages of 80% employer and 20% employee, it is estimated that for FY 2013, $10M in General Fund constitutional transfer savings would have been realized. 2013 Health Plan Ctributions by Agency ----------------------on------ - - - - -- - Adopted Budget Policy: In FY 2014, the average cost distribution of health insurance premiums between the Board of County Commissioners and employees will remain 80% (employer) and 20% (employee). It is still recommended that the 80% employer share and 20% employee share be uniform across all agencies, including the Constitutional Officers. This policy treats all county employees equally in terms of cost sharing for health insurance premiums. Average Average 2013 Savings if Monthly Monthly all Agencies Agency EE Rate ER Rate Total EE % ER % EE's Sgl Fam were @ 80/20% BCC $260.52 $ 1,042.10 $1,302.62 20.00% 80.00% 1382 559 823 $ sOE $260.52 $ 1,042.10 $1,302.62 20.00% 80.00% 18 9 9 $ COC $260.52 $ 1,042.10 $1,302.62 20.00% 80.00% 176 73 103 $ - PA $ 16.68 $ 1,285.94 $1,302.62 1.28% 98.72% 47 19 28 $ 109,420.05 TC $ 17.72 $ 1,284.90 $1,302.62 1.36% 98.64% 134 39 95 $ 406,417.34 COO $ 43.17 $ 1,031.05 $1,074.22 4.02% 95.98% 1227 412 815 $ 2,527,667.61 Total $ 3,043,505.00 Adopted Budget Policy: In FY 2014, the average cost distribution of health insurance premiums between the Board of County Commissioners and employees will remain 80% (employer) and 20% (employee). It is still recommended that the 80% employer share and 20% employee share be uniform across all agencies, including the Constitutional Officers. This policy treats all county employees equally in terms of cost sharing for health insurance premiums. A A I I Retirement Rates All agencies including Constitutional Officers must use the retirement rates published within the OMB budget instructions. OMB is monitoring all proposed bills. The legislature usually establishes the new retirement rates in the beginning of May with the Governor signing the bill into law at the end of May. The preliminary retirement rates that will be published in the instructions are based on Florida Statutes Chapter 121 second year rates (rates that will go into effect July 1, 2013 if the legislators fail to establish new rates for state fiscal year 2013- 2014). Adopted Budget Policy: Adherence to the OMB rates published within the OMB budget instructions. Accrued Salary Savings Reduced FTE counts, low turnover and stringent limitations on expanded positions, coupled with the full budgeted amounts for health insurance and worker's compensation being transferred to the self - insurance funds, impacts the amount of accrued salary savings due to position vacancies. Previously, a 4% attrition rate for each Agency funded by the General Fund and for all of the County Manager Agency was calculated on Regular Salaries. For FY 2014, it is suggested that the attrition rate remain at 2% with the objective of eliminating attrition as a budgetary tool in FY 2015 or after. Adopted Budget Policy: Continue the accrued salary savings policy at a 2% rate. Storm Water Management Capital Funding The Board previously adopted (County Resolution 2010 -137) a policy with funding equivalent up to 0.1500 mills annually from the General Fund for countywide storm water initiatives. The purpose of this dedicated funding source is to address long - standing capital project needs in the storm water program area, as well as to identify to grantor agencies that Collier County has a dedicated funding source to provide local matching requirements to available grants. Addressing storm water funding needs in the unincorporated area, staff plans to dedicate via transfer from the MSTD General Fund (111) at least $250,000, similar to funding in FY 2013. Adopted Budget Policy: Recognize the current policy pursuant to 2010 -137 with the understanding that a millage neutral budget will likely require that this transfer be set at an equivalency of 0.1000 mils. Proposed Use of Gas Taxes Previously, the Board directed through policy that all available gas taxes will be used to support the Road Construction Capital Improvement program. Immediately prior to the decline in taxable values, this transfer amounted to $24 million. Recent reductions in the General Fund (001) transfer to roads has meant that gas taxes (the pledged revenue source) fund a significant portion of debt service on the 2003 and 2005 Gas Tax Revenue Bonds. Current debt service is approximately $14 million per year and the General Fund transfer proposed for FY 2014 is the same as FY 2013 at $11.2 million. Gas tax revenue from all sources in recent years has averaged approximately $18.5 million per year. 10 lic Adopted Budget Policy: Continue the Board's FY 2013 policy and allow gas taxes to support not only the road construction improvement and maintenance program but to also pay for a portion of the debt service, instead of the General Fund legally available non ad valorem revenue supporting all of the debt service payments. General Fund Debt Contribution and Debt Manaeement The General Fund (001) has provided via transfer the sum equivalent of up to 1/3 mil to non impact fee eligible county wide capital functions and a debt payment component since FY 2006. The majority of this transfer has evolved into a debt service payment and for FY 2013 $10.7 million of this $12.1 million transfer will cover debt service. Due to the lack of impact fee revenue, $4.3 million represents a loan from the General Fund to cover growth related debt. For FY 2014, the General Fund (001) transfer (loan) will be sized to cover debt service which cannot be covered by impact fees. Payment of debt is a top priority. Under a flat taxable value planning scenario dollars generated from the 1 /3rd mil equivalent allocation will be sufficient to cover this debt service requirement. Of the $11.0 million projected transfer in FY 2014, $4.9 million will be required to cover the growth related debt service gap due to insufficient impact fee revenue and $3.8 million is budgeted to cover non growth related debt. The remaining $2.3 million will be devoted to general capital items. It is likely that the transfer required to cover debt service due to insufficient impact fee revenue will grow from $4.9 million in FY 2014 to $6.0 million in FY 2015 and $7.7 million in FY 2016. Impact fee collections have declined by 82% between FY 2007 and FY 2011 from a high of $105.4M to $19.1M. For FY 2012, impact fees across all categories totaled $22.9M. For budget planning purposes, impact fee revenue for FY 2013 and FY 2014 is projected in the $19.5M range. Within the framework of a fully funded and policy compliant debt management program, the County has taken advantage of historically low interest rates and reduced further the cost of borrowing through aggressive restructuring of the debt portfolio. During fiscal years 2010 through 2012, the County restructured $219.3M in long term debt and variable rate commercial paper, achieving a level of budget certainty, reducing the cost of borrowing within the portfolio by $10.1M and returning $9.1M of the $19.5M borrowed from Enterprise funds to establish a debt service reserve debt surety necessitated by collapse of the bond insurance market. Collier County's principal debt outstanding at 9/30/12 totals $627M of which $351M is connected with infrastructure improvements by population growth and related service demands. The County's principal debt has been reduced by $177M since FY 2008. With the County continuing to aggressively pay down its current debt obligation and with no plans to issue new debt, approximately 50% of existing debt will be retired over the next ten (10) years. Efforts continue to explore fiscally responsible means to refund existing general government revenue and enterprise debt. Staff is currently planning and will be bringing back to the Board over the next few months, $25M in utility debt restructuring and $63.1M in sales tax capital improvement debt restructuring which would eliminate the series 2003 and 2005 issues entirely in favor of refunded special obligation debt with a basket pledge of all legally available non ad valorem revenue. It is expected that these restructuring initiatives will reduce the cost of 11 11G borrowing within the portfolio further by $8M to $9M dollars without altering the debt term. In addition the debt service reserve cash surety necessitated by collapse of the bond insurance market will be eliminated and all remaining borrowed proceeds returned to the respective enterprise funds. Adopted Budget Policy: Continue to transfer an equivalent sum of up to 1/3 mil to the County Wide Capital Fund for purposes of paying non - growth related revenue bond debt; to provide impact fee fund loans to cover growth related debt obligations; and to fund much needed general governmental priority capital needs. Reserves A reserve for contingency is typically budgeted in all operating funds, with the exception of the Constitutional Agency funds. Reserves for the Constitutional Agency funds shall be appropriated within the County General Fund. The State establishes maximum limitations on certain reserves. The maximum limitations for reserves for contingency and for cash flow are 10% and 20% of a fund's total budget, respectively. Previously, the General Fund and the MSTD General Fund contingency reserves are generally established by Board policy at 2.5% of total budgeted appropriations. There is no statutory limit on capital reserves. The reserves for cash flow, in both funds, varies based on the budget; however, cash flow reserves will never exceed the statutory limits. Despite recent reductions in ad valorem tax revenues, it is strongly recommended that efforts continue to grow General Fund reserves — an effort which began in FY 2011. Budgeted General Fund contingency reserves for FY 2013 total $6,381,300 — representing 2.50% of total operating appropriations. This reserve level is $73,400 below the FY 2012 level. The FY 2013 reserve for cash flow grew by $6,300,000 to $18,900,000. For FY 2014, it is recommended that the contingency reserve once again be established at 2.5 %. To the extent possible in this economic environment, staff will strive to increase overall General Fund budgeted reserve growth. Optimally and in order to achieve a regular and sustained General Fund beginning fiscal year cash position of $50M, budgeted reserves should be a minimum of $35M. Mid -year cuts will continue to be a regular practice unless and until budgeted reserves reach this level. Before the first quarter of a fiscal year, and prior to the collection of substantial property tax revenue, the General Fund expends on average $40 -$45 million on various public safety and priority operational items. Regular and measured growth in General Fund reserves sends a strong message of fiscal health and stability to the bond rating agencies and financial community, especially when revenue streams are constrained. Reserves provide a level of protection against unknown costs and costs associated with unfunded state and federal mandates. Adopted Budget Policy: Build General Fund (001) and Unincorporated Area MSTD General Fund (I 11) reserves pursuant to this policy. 12 ilk Scheduling Issues Decisions Required Staff Recommended Date (s) Establish Budget Submission Dates May 1, 2013 by Resolution for the Sheriff, the Supervisor of Elections and the Clerk June Budget Workshops (BCC Agency /Courts and Constitutional Officers Budget Workshops) Thursday, June 20 and Friday June 21, 2013 FAC Conference is June 25 — June 28, 2013 in Tampa. Submission of Tentative FY 2014 Friday July 12, 2013. Budget to the Board Adoption of Tentative Maximum FY July 23, 2013 (Tuesday) 14 Milla a Rates Establish Public Hearing Dates (see September 5, 2013 (Thursday at 5:05 pm) note) September 19, 2013_ (Thursday at 5:05 m) Note: The School Board has first priority in establishing public hearing dates for budgets. The School Board's final budget hearing is tentatively scheduled for September 10, 2013. The Commission chambers are reserved for the tentative dates for Collier County Government budget public hearings. Adopted Budget Policy: Approve the dates identified above and attached resolution establishing May 1, 2013 budget submittal dates for the Sheriff, the Supervisor of Elections and the Clerk. Comparative Budget Data Provide comparative budget data using FY 2013 adopted budget data (cost and employees per capita based on unincorporated area population) by Agency with Budget Submittals for Similar Sized Florida Counties. Adopted Budget Policy: Counties for comparison purposes include: • Sarasota County • Lee County • Charlotte County • Manatee County • Martin County 13 11G Continuing Existing Budget Policies for FY 2014 Grant Funded Positions: Any positions formerly funded with grant funds being recommended for inclusion in a general (non -grant funded) operating budget shall be treated as expanded service requests. Self- Insurance: To conduct an actuarial study of the self - insured Workers' Compensation, Property and Casualty, and Group Health Insurance programs. Program funding to be based upon an actuarial based confidence interval of 75 %, with the exception of group health to which a confidence interval is not applicable. Contract Agency Funding: The Board will not fund any non - mandated social service agencies. Median Maintenance: Recognize the Unincorporated Area General Fund MSTD (111) as the appropriate, dedicated funding source for median beautification maintenance costs. Carry forward: 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 not only operating funds but also 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 largest sources of carry forward are the capital, debt service, and enterprise funds. In both the General Fund and MSTD General Fund, carry forward fund balance is maintained to provide cash flow for operations prior to the receipt of ad valorem taxes and other general revenue sources. Since FY 2009, mid -year budgeted appropriation reductions were required to ensure that adequate fund balances were available in the new fiscal year. General Fund balance is required to meet significant 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 65.0% of the total FY 2013 General Fund adopted revenues). Fund balance is also an important measure used by bond rating agencies in determining the County's credit worthiness. Staff from Moody's Investors Service was contacted previously to determine an appropriate level of carry forward revenue. Specific concerns for Florida communities were reliance on the tourism industry and sales tax revenue, and the ongoing threat from hurricanes and wildfires. For Florida coastal communities, a minimum carry forward balance of 10% of total General Fund expenditures was recommended by the ratings agencies. Of course this figure and recommendation was general in nature and subject to each county's individual cash flow needs. A higher percentage would be considered positive — especially during any ratings surveillance. The recommended level of fund balance in the General Fund should be a minimum of 10% of actual expenditures.- At year ending September 30, 2012, actual General Fund carryforward balance totaled $57,522,000 which represented approximately 21.0% of actual FY 2012 expenses. 14 Indirect Cost Allocation Plan: The policy of charging enterprise and special revenue funds for support services provided by General Fund departments will be used again in FY 2014. 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 (PELT) to the General Fund. For FY 2013, the payment in lieu of taxes calculation was based upon a "franchise fee equivalent basis" commonly referred to as a percentage of gross receipts. Five percent (5 %) of gross receipts were applied in FY 2013 and this method and percentage is planned for in FY 2014. This method is a common approach used by local governments and is generally consistent with fees paid by private utilities operating in a local government jurisdiction. Prior to FY 2013, PILT was based upon the prior year General Fund millage rate multiplied by the prior year gross (non- depreciated) value of property, plant, and equipment. Debt Service: Any capital projects financed by borrowing money shall limit the repayment period to the useful life of the asset. 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 that has the lowest total cost shall be employed. The Collier County Debt Management Policy provides that advance refunding for economic savings will be undertaken when a present value savings of at least five percent of the refunded debt can be achieved. The policy also states that five percent savings is often considered a benchmark and that any refunding that produces a smaller net present value savings may be considered on a case by case basis. A smaller net present value savings may be prudent for example when the intent is to eliminate old antiquated and limiting bond covenant language. Ad Valorem Capital and Debt Funding: Continuation of a fixed General Fund equivalent millage dedicated to capital projects, debt financing and impact fee fund debt loans. The recommended rate is up to the equivalent of 0.3333 mills. (See history below). 15 11 General Fund Capital Equivalent Millage History (FY 1991 - FY 2016) 1.2000 1.0000 0.8000 a 0.6000 0.4000 37 W 0.2000 0 0.0000 4tiC► �►°`CP 0000 QPQ11- �cPoScloo�o %o�ti ° >>�ti�^�ti°'�5��0 1 0.1878 The General Fund continues to loan money to impact fee funds in order to pay their annual debt service payments. This of course is in addition to normal and customary debt service on non growth related revenue bond debt. 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, to the extent possible, by impact fees. • Capital projects identified in the five -year CIE will be given priority for funding. The five -year plan for water and wastewater CIE projects will be based on projects included in the adopted master plans. Unlike operating budgets that are 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. 16 0.6580 0.5474 0 0.5426 0.3809 0.3333 • 0 0.2783 0 0.2067 0.2001 The General Fund continues to loan money to impact fee funds in order to pay their annual debt service payments. This of course is in addition to normal and customary debt service on non growth related revenue bond debt. 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, to the extent possible, by impact fees. • Capital projects identified in the five -year CIE will be given priority for funding. The five -year plan for water and wastewater CIE projects will be based on projects included in the adopted master plans. Unlike operating budgets that are 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. 16 11G Three -Year Budget Projections Ad Valorem Tax Funds (FY 2014 - FY 2016) OMB staff prepares annually a three -year projection of General Fund and MSTD General Fund revenues and expenditures to improve financial planning and to understand the long -term impact of funding decisions. These projections are complimented by a trend analysis of revenues and expenses which conclude the General Fund and Unincorporated Area General Fund sections respectively. The following 3 -year budget projections are for the General Fund (001) and the MSTD General Fund (111). General Fund General Fund (001) Millaize History and Millaae Rates As a point of reference, the following graph plots the historical General Fund millage rate, as well as millage neutral tax rates for FY 2014 through FY 2016. Millage neutral rather than tax neutral rates are used for planning purposes considering the belief that taxable values will continue to increase modestly in the future. While the County Manager will be recommending a millage neutral budget in FY 2014 and while this millage neutral budget will contain funding for priority public safety and other significant asset maintenance /replacement initiatives, the Board should note the magnitude of our future asset maintenance responsibility and devote additional future dollars which may be generated from an increasing taxable value base to maintaining and or replacing corporate assets. 17 i I G A separate Board workshop covering the extent, condition and programmatic aspects of asset management is anticipated during FY 2013. The following tables depict the respective millage neutral tax rates for FY 2014, 2015 and 2016 as well as additional ad valorem dollars which could be raised under certain increasing tax base assumptions. General Fund FY 13 Adopted and Recommended Millage Neutral Milla a Rates Inc. (Dec.) per $100,000 Taxable Value FY 13 3.5645 $ 0.00 FY 14 3.5645 $ 0.00 FY 15 3.5645 $ 0.00 FY 16 3.5645 $ 0.00 The projected millage rates assume a flat taxable value position to existing property in FY 2014 (the 2013 tax year). For FY 2015, taxable value on existing property is projected to increase 1% although the new construction component is projected to increase modestly. Taxable value in FY 2016 is projected to also increase 1 %. The Property Appraiser will provide preliminary taxable value estimates for FY 2014 on June 1, 2013. Actual and assumed changes in County taxable values are as follows: Historical and Projected Changes in Collier County Taxable Values Flat Taxable 1% 1.5% 2% 2.5% 3% Value (FY 19.86% 30.00% 2014 County-Wide $58,497,796,462 $2,085,200 $3,127,700 $4,170,300 $5,212,900 $6,255,500 Taxable Value for FY 2013 25.00% FY05 FY06 The projected millage rates assume a flat taxable value position to existing property in FY 2014 (the 2013 tax year). For FY 2015, taxable value on existing property is projected to increase 1% although the new construction component is projected to increase modestly. Taxable value in FY 2016 is projected to also increase 1 %. The Property Appraiser will provide preliminary taxable value estimates for FY 2014 on June 1, 2013. Actual and assumed changes in County taxable values are as follows: Historical and Projected Changes in Collier County Taxable Values 25.38% (FY 2005 - FY 2016) 19.86% 30.00% 11.48% o 25.00% FY05 FY06 FY07 FY08 - 4.70% - 5.26% - 11.04% _ 12.20% 0.51 % FY 13 0.00% FY 14 1.00% FY 15 1.00% FY 16 20.00% 15.00% ao 10.00% i 5.00% 0.00% - 5.00% - 10.00% - 15.00% Notes to Graph: FY 2007: The General Fund (001) millage rate adopted in FY 2007 was based upon a 16% increase in taxable value pursuant to BCC direction. FY 2008: As part of the Florida Legislative Property Tax Reform package implemented in FY 2008, Collier County adopted its final millage rate at 91% of the rolled back rate. 18 25.38% 19.86% 11.48% o FY05 FY06 FY07 FY08 - 4.70% - 5.26% - 11.04% _ 12.20% 0.51 % FY 13 0.00% FY 14 1.00% FY 15 1.00% FY 16 Notes to Graph: FY 2007: The General Fund (001) millage rate adopted in FY 2007 was based upon a 16% increase in taxable value pursuant to BCC direction. FY 2008: As part of the Florida Legislative Property Tax Reform package implemented in FY 2008, Collier County adopted its final millage rate at 91% of the rolled back rate. 18 11G FY 2014 Sienificant Expense Assumptions A millage neutral budget assuming a flat taxable value base will require modest operating cuts within ad valorem supported functions in order to offset planned increases in health insurance costs, various indirect charges, priority equipment replacement and other non discretionary costs. Significant expense assumptions include; • Allocation for compensation administration - 0 %. Event driven basis only. • 2% attrition rate on regular salaries assumed in the County Manager's Agency. • $800,000 for continued ambulance replacement. • $3,000,000 first set aside to replace EMS Helicopter in FY 2105. • Five year phased approach to upgrading the county -wide 800MHz radio system platform. First phase allocates $3,000,000 to network switching and console enhancements. • Continued additional David Lawrence Center Funding in the amount of $300,000 • Continue General Fund debt payment and impact fee loan transfer equivalent up to 0.3333 mills annually ($10,987,900). • Storm water capital funding equivalent to 0.1000 mills or $5,530,100. This millage equivalency rate represents no change from FY 2013. • General Fund support of road construction and maintenance funded at $11,230,800 consistent with FY 2013 levels. • General Fund support of EMS established at $11,333,100 — no change from FY 2013 base figure. (EMS fund 490 received an additional $691,500 in FY 2012 due to reduced fee collections). Capital contributions noted above and separate from operating subsidy. • Continue if possible the shift in Transportation Operations funding from MSTD General Fund (111) to General Fund (001). • Mandates to be absorbed if possible within operating budgets, including Constitutional Officers. Significant Revenue Assumptions • FY 2013 ad valorem tax revenue forecast is 96% of actual taxes levied. FY 2013 forecast totals $200,925,100 — a reduction of $7,950,600 off budget. A millage neutral position for FY 2014 produces a levy of $208,515,400. • Sales tax revenue forecast for FY 2013 is projected at $29,000,000 representing an increase of 1.8% over budget. FY 2014 budgeted revenue is projected at $29,500,000. • State Revenue Sharing for FY 2014 is projected to increase $250,000 or 3.4% over budget. • Constitutional Officer turn-back is a very conservative budget estimate and for FY 2014 $5,600,000 is projected — a decrease of $300,000 over the FY 2013 budget. • Measures to maintain beginning fund balance at approximately $50,000,000 continue to be necessary and include continued growth in budgeted reserves coupled with any combination of revenue receipts over budget and mid - year appropriation adjustments. • Interest income is projected to increase modestly by $50,000 to $500,000 due to increasing fund balances in FY 2013. 19 11G EMS Fund EMS is another fund that impacts significantly on the General Fund. Typically, this ad valorem support in recent years accounted for 45% to 50% of total EMS operating revenues. However, the percentage is increasing given the decline in fee revenue. Historical and projected General Fund support of EMS operations by fiscal year is as follows: General Fund Support in EMS (FY 2005 - FY 2016) $14 $13.3 $12.0 $12.8 $12 $11.3 11 $11.3 10.9 $11.0 $10.7 $10 c $8 $6 $4 $2 $0 FY05 FY06 FY07 FY08 FY09 FY 10 FY 11 FY 12 FY 13 FY 14 FY 15 FY 16 Use of General Fund dollars to support this life /safety function has and continues to be a priority. No reduction in General Fund base transfer dollars is anticipated in FY 2014. Road Construction Program The Board approved road financing plan was based historically on using growth in taxable value and maintaining the General Fund millage rate to provide increasing dollars to meet the road funding commitments. These dollars are depicted on the following graph. While taxable values are projected to stabilize, the General Fund budgeted contribution to road construction and maintenance is expected to remain at $11.2 million as indicated on the following graph. 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 resources to protect this important investment. Capital obligations necessitated by state or federal agreement, like JPA's and DCA's will be funded. Current General Fund revenue constraints require that gas taxes be used to cover a larger portion of debt service as well as the functions stated above. 20 11G General Fund Support of Road Construction (FY 2003 - FY 2016) $45 $40 $35 $30 c $25' 0 $20 $15 15. $10 $5 $0 FY 03 FY 04 FY 05 FY 06 FY 07 FY 08 FY 09 FY 10 FY 11 FY 12 FY 13 FY 14 FY 15 FY 16 ■ Transfer from General Fund 0 Returned to General Fund ❑ Additional Funds Transferred FY 2015 A millage neutral budget in FY 2015 with an increase of 1% in taxable value will likely require continued operating reductions plus a substantial and service limiting mid -year FY 2014 cut in order to establish sufficient resources to fund priority public safety capital initiatives like the final EMS helicopter set aside; continued ambulance replacement; sheriff capital requests; and 800 megahertz equipment replacement. This of course is in addition to other infrastructure replacement needs. In addition to annual inflationary cost increases, the following items were included in the FY 2015 budget analysis: • Maintain Capital projects funding in an equivalency up to 0.3333 mills. • Stormwater capital projects funding equivalent to 0.10 mills. • Maintain General Fund support of EMS. • Continued ambulance replacement. • Set aside final $3,000,000 to replace EMS Helicopter. • Year two funding to upgrade the county -wide 800MHz radio system platform by allocating $3,900,000 to upgrade the site network. • Contingency reserves are maintained at policy. • Maintain General Fund road subsidy. • Maintain General Fund support for Transportation Operations expenses. In summary, the FY 2015 analysis signals caution especially when critical variables like taxable value, market conditions and general revenues are difficult to predict. Pursuing a millage neutral budget in FY 2015 without a sufficient budgeted beginning fund balance would likely result in a $20.3 million budget planning deficit as depicted in the trend analysis. Of course required correction on the expense side assuming revenue assumptions are accurate would be necessary. 21 11G These corrections could mean reducing or eliminating the General Fund road subsidy forcing the use of gas taxes to completely support the approximately $14 million annual road debt service payment. This would leave approximately $4 million of gas tax revenue for capital, maintenance, right -of -way acquisition and the Collier Area Transit (CAT) subsidy. Other operating transfer subsidies would also be targeted including dollars in support of the transportation operations. FY 2016 A millage neutral budget in FY 2016 coupled with a modest taxable value increase presents a significant challenge to a balanced budget under a scenario where fund balance continues to erode. Once again, without a sufficient beginning fund balance, the projected FY 2016 deficit approaches $18.5 million as indicated within the trend analysis. The following items were included in the FY 2016 budget analysis: • Maintain Capital projects funding in an equivalency up to 0.3333 mills. • Stormwater capital projects funding equivalent to 0.10 mills annually. • Maintain General Fund support of EMS. • Year 3 funding to upgrade the county -wide 800MHz radio system platform committing $4,400,000 to continued network site improvements, and microwave connectivity. • Contingency reserves are maintained at policy. • Maintain General Fund road subsidy. • Maintain General Fund support for Transportation Operations expenses. 22 11G General Fund Trend Analysis Budgeted Reserves 24,580,900 24,610,500 24,6M2W 23 Gaul Fwd Analysis AdoptedBudget EY 2013 Foacast ff 2. Forecast FY 2014 Forecast FY 2015 Forecast FY i .1[ Forecast iY 2011 $mil Advatorem 208,875,700 200,925,100 -3.8% 200925,000 0.0% 202931,200 1.0% 201,963,720 LO% Sates Tic 28,50.000 29,100,000 2-1% 29,500,000 1.4% 30,090,000 2.0% 30,812,300 2.5% Revmue Shmios 7,450,000 7,60.000 2.0% 7,70.000 1.3% 7,851,000 2.0% 8,030,400 2.5% OdurRevenaes 33,921300 33,841,300 -0.2% 31,360,400 -73% 31,321,300 -0.1% 31390,284 -0.1% Less 5% Requimd by Law (13,105,600) 0 0 0 0 Canyfarward 44,283,700 57,515,000 29.9% 30,208,000 -127% 31,339,300 -371% 11,166,900 -64.6% (7,397,396) TOWRevsanes 309925,100 328,981,400 61% 319,693,400 -2 8% 303,739„200 -5.0% 286,313,604 -5 r4 LROOMM i DgmcM- s 58,764,100 59,038,000 0.5% 61,792,600 4.r% 62,410,500 1.0.4 63,034,700 1.0% Debt Service 6 ,585,000 6,383,000 0.0% 3,837,200 - 39.91: 3,070,900 -20.0% 3,062,800 -0.3% Cap - Loans to Impact Fee Fds 4312,900 4,312,900 0.0% 4,99.700 15 7% 6,088,900 210% 7,723,600 26.8% Capital 18,953,300 16,618,300 - 12.3% 25,720,900 54.8 %' 27370,900 6.4 % 2436.900 11.0.4 Ttaadus 33,165,600 29 ,573,900 -10.8% 28932,700 -a. 1% 29,241,400 1.o% 29 ,533900 1.01% Constitu000al OAicars 163,499,800 162,845,300 -o.4% 162,839,600 0.0% 164,409,700 1 ac 163,995300 10% Reserves 24,844,400 0 0 0 0 TotdExpend -Ames 309,925,100 278,773,400 -101% 288,133,900 34% 292,592,300 i.5% 293, 117,200 0.4% Reveanes less Expmdidres (Cmyforward) 30,208,000 31,339,300 11,166,900 (7,397,396) Total Amt of .Amt a[Equity (CF) reduced to balance the budge 7,307,000 18,648,500 20,392,600 18,564,496 Egift Consr>med (64912 396) Budgeted Reserves 24,580,900 24,610,500 24,6M2W 23 11G Unincorporated Area General Fund (111) MSTD General Fund (111) Millage History As a point of reference, the following graph plots the historical MSTD General Fund (I 11) millage rate, as well as millage neutral rates for FY 2014 through FY 2016. Millage neutral rather than tax neutral rates are used for planning purposes considering the belief that taxable values will continue to increase modestly in the future. Unincorporated MSTD General Fund (111) Millage History and Recommended Millage Neutral Tax Rates (FY 2005 to FY 2016) 0.8500 0.8069 0.8069 0.8069 0.8000 0.7500 _m 0.7161 0.7161 0.7161 0.7161 0.7161 0.7161 0.7161 0.7000 0.6500 0.6000 FY 05 FY 06 FY 07 FY 08 FY 09 FY 10 FY 11 FY 12 FY 13 FY 14 FY 15 FY 16 Results of Unincorporated Area General Fund Analysis While the County Manager will be recommending a millage neutral budget in FY 2014, and while this millage neutral budget will contain funding to maintain the road network, storm -water system, community park capital and landscape asset, the Board should note the magnitude of our future maintenance and asset replacement responsibility and dedicate resources gained through an increasing taxable value base toward this purpose. 24 11G The following tables depicts the respective millage neutral tax rates for FY 2014, 2015 and 2016 as well as additional ad valorem dollars which could be raised under certain increasing tax base assumptions. Unincorporated Area General Fund FY 13 Adopted and Recommended Millage Neutral Tax Rates Inc. (Dec.) per $100,000 Taxable Value FY 13 0.7161 $0.00 FY 14 0.7161 $0.00 FY 15 0.7161 $0.00 FY 16 0.7161 $0.00 VWJ Ili C! The FY 2014 budget projection is based upon a millage neutral position assuming a flat taxable value base. Under millage neutral, property taxes will remain flat. Property taxes and the communications services tax represents on average approximately 79% of the operating revenue within the MSTD General Fund (111). Changes to distribution and structure of the communication services tax is being debated in Tallahassee. The Florida Association of Counties (FAC) is participating in a communication services tax working group which is discussing ways to modernize the structure of this revenue source. Traditionally strong cash balances have provided a level of built in protection in recent years from mid -year cuts. However, continued millage neutral budget positions and an increasing commitment to landscape and road network maintenance as well as Community Park improvements will require mid -year budget reductions to maintain beginning cash at required levels. This fund is predominately operating in nature with minimal capital or capital transfer expense. Any required mid -year cuts will likely affect transportation operations, park and recreation programs and other non public safety services. Beginning in FY 2009, the MSTD General Fund (111) absorbed part of the Transportation operating transfer which had been borne previously by the General Fund (001). State Law and specifically section 129.02 requires the establishment of a separate County Transportation Trust Fund to "carry on all work on roads and bridges in the county... ". Collier County Transportation operations are funded primarily within Transportation Operating Fund 101. Since inception of the Transportation Division in FY 2001 and continuing through FY 2008, Transportation Fund 101 has received as its primary revenue source a transfer from General Fund (001) — not MSTD General Fund (111). 25 Flat Taxable Value 1% 1.5% 2% 2.5% 3% Unincorporated $36,031,604,374 $258,000 $387,000 $516,000 $645,100 $774,100 Area General Fund Taxable Value for FY 2013 VWJ Ili C! The FY 2014 budget projection is based upon a millage neutral position assuming a flat taxable value base. Under millage neutral, property taxes will remain flat. Property taxes and the communications services tax represents on average approximately 79% of the operating revenue within the MSTD General Fund (111). Changes to distribution and structure of the communication services tax is being debated in Tallahassee. The Florida Association of Counties (FAC) is participating in a communication services tax working group which is discussing ways to modernize the structure of this revenue source. Traditionally strong cash balances have provided a level of built in protection in recent years from mid -year cuts. However, continued millage neutral budget positions and an increasing commitment to landscape and road network maintenance as well as Community Park improvements will require mid -year budget reductions to maintain beginning cash at required levels. This fund is predominately operating in nature with minimal capital or capital transfer expense. Any required mid -year cuts will likely affect transportation operations, park and recreation programs and other non public safety services. Beginning in FY 2009, the MSTD General Fund (111) absorbed part of the Transportation operating transfer which had been borne previously by the General Fund (001). State Law and specifically section 129.02 requires the establishment of a separate County Transportation Trust Fund to "carry on all work on roads and bridges in the county... ". Collier County Transportation operations are funded primarily within Transportation Operating Fund 101. Since inception of the Transportation Division in FY 2001 and continuing through FY 2008, Transportation Fund 101 has received as its primary revenue source a transfer from General Fund (001) — not MSTD General Fund (111). 25 11 The following table depicts budgeted dollars transferred to support transportation operations from the General Fund and Unincorporated Area General Fund. For FY 14, a concerted effort will be made to revert this transfer back solely to the General Fund. Targeted divisional expenses will be reduced under a flat taxable value assumption to account for expected increases in employer health insurance premiums, electricity, fuel, and other non discretionary costs. FY 2015 Assuming that taxable values will increase by 1 % in FY 2015, a millage neutral budget coupled with a reduction in beginning fund balance could result in a potential budget planning deficit of $2.5M as depicted within the preceding trend analysis. Ensuring a sufficient budgeted beginning fund balance would likely require elimination of the transfer to support transportation operations. The trend analysis shows continued erosion of the funds cash position and in fact without concentrated budget management, a reduction in fund equity from $5.1 million to $2.1 million is anticipated. This model is certainly not sustainable and budget reduction measures would be instituted. FY 2016 Continuation of millage neutral into FY 2016 under a modest 1% increase in the tax base value 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. For planning purposes and assuming continued decline in beginning budgeted fund balance, a deficit of $2.1 million could be encountered. Absent budget management mid -year, the model depicts a total fund equity loss from FY 2013 through FY 2016 totaling $10.4 million. 26 General Fund (00 1) MSTD (I 11) Total Y 08 $18,066,900 $0 $18,066,900 FY 09 $9,864,700 $7,693,500 $17,558,200 Y 10 $7,935,400 $8,786,900 $16,722,300 Y 11 $12,971,400 $2,912,800 $15,884,200 Y 12 $12,366,900 $2,825,400 $15,192,300 Y 13 1 $11,496,300 $2,272,200 $13,768,500 For FY 14, a concerted effort will be made to revert this transfer back solely to the General Fund. Targeted divisional expenses will be reduced under a flat taxable value assumption to account for expected increases in employer health insurance premiums, electricity, fuel, and other non discretionary costs. FY 2015 Assuming that taxable values will increase by 1 % in FY 2015, a millage neutral budget coupled with a reduction in beginning fund balance could result in a potential budget planning deficit of $2.5M as depicted within the preceding trend analysis. Ensuring a sufficient budgeted beginning fund balance would likely require elimination of the transfer to support transportation operations. The trend analysis shows continued erosion of the funds cash position and in fact without concentrated budget management, a reduction in fund equity from $5.1 million to $2.1 million is anticipated. This model is certainly not sustainable and budget reduction measures would be instituted. FY 2016 Continuation of millage neutral into FY 2016 under a modest 1% increase in the tax base value 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. For planning purposes and assuming continued decline in beginning budgeted fund balance, a deficit of $2.1 million could be encountered. Absent budget management mid -year, the model depicts a total fund equity loss from FY 2013 through FY 2016 totaling $10.4 million. 26 11G Unincorporated Area MSTD General Fund (111) Trend Analysis 27 Adopted gadget Foreoast Foreced Forecast Foreatt ForecM FY 2013 FY 2013 FY 2014 FY 2015 FY 2016 FY 2017 I119=1011 (FIatTV) (Increase 1% TV) (Increase 1 % TV) Ad Valorem 25,863,400 24,828,900 -4.0% 24,770,100 -0.2% 25,017,800 1.0%r 25,268,000 1.0% Communication Services Tax 4,800,000 4,800000 0.0% 4,800,000 0.0% 4,848,000 1.0%' 4,%9,200 2.5% Other Revenue 4,046,500 4,269,600 5.5% 5,078,600 18.9%' 5,129,400 1.0%r 5,180,700 1.0% Less 5% Required By Law (1,6961900) 0 - 100.0% 0 0.0% 0 0.0% 0 0.0% Carryforward 5,853,300 7,902,900 35.0% 5,104,800 -35.4% 2,131,300 -58.2% (375,300)'- 117.6% (2,459,200) Total Revenues 38,866,300 41,801,400 7.6% 39,753,500 -4.9% 37,126,500 -6.6% 35,042,600 -5.6% EBfF Landscape Maintenance 4,442,200 4,314,200 -2.9% 4,642,200 7.6% 4,642,200 0.0% 4,642,200 OA% Roads 5,760,000 5,650,000 -1.9% 5,800,000 2.7% 5,800,000 0.0% 5,800,000 0.0% Parks & Rec. 10,652,500 10,586,000 -0.6% 10,802,500 2.0%10,682,100 -1.1% 10,682,100 0.0% Code Enforcement 4,096,200 4,050,500 -11% 4,096,200 1.1% 4,096,200 0.0% 4,096,200 0.0% Other Departmental 7,402,000 7,216,600 -2.5% 7,402,000 2.6% 7,402,000 0.0% 7,402,000 0.0% Transfers 4,917,200 4,879,300 -0.8% 4,879,300 0.0% 4,879,300 0.0% 4,879,300 0.0% Reserves 1,596,200 0 - 100.0% 0 0 0 Total Expenses 38 ,866,300 36,696,600 -5.6% 37,622,200 2.5% 37,501,800 -0.3% 37,501,800 0.0% Fund Balance 5,104,800 2,131,300 (375,300) (2,459,200) Equity Reduction to balance budget 2,798,100 2,973,500 2,506,600 2,083,900 (10,362,100) Budgeted Reserves 437,400 437,400 437,400 27