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Home My WebLink About04/10/2003, 3 - STRATEGIC BUDGET DIRECTION C council ?Am°�°� 4-10-03 j acEnbA RepoRt 1�N�. 3 CITY OF SAN LUIS OBISPO FROM: Ken Hampian, City Administrative Offic Bill Stader, Director of Finance SUBJECT: STRATEGIC BUDGET DIRECTION CAO RECOMMENDATION 1. Review and discuss updated General Fund fiscal forecast for 2003-05. 2. Approve conceptual budget balancing strategy for 2003-05. REPORT-IN-BRIEF The purpose of this report is to answer two basic questions as we begin preparing the Preliminary Financial Plan for 2003-05: 1. What's the challenge facing us? 2. And what's our strategy for responding to it? Our goal in answering the second question at this point in the process is not to make specific budget decisions regarding revenues and expenditures: there are a number of budget workshops and hearings ahead of us after issuance of the Preliminary Financial Plan in mid-May for that purpose. And the fact is that there are still too many unknowns—both on the revenue and expenditure side—for a"final" plan at this time. However, in preparing the Preliminary Financial Plan, we need "strategic" guidance now from the Council regarding the role that each of the following three basic components should play in balancing the budget for 2003-05: 1. Strategic use of reserves. 2. Revenue additions allowed under Proposition 218. 3. Expenditure reductions, both capital and operating. Stated simply, we will not be able to effectively craft a preliminary budget for Council and community review if everything is a variable: we need some "constants" as we strive to arrive at a budget-balancing formula that makes sense, both from a "municipal math" perspective as well as a community service one. In short, we are not asking the Council to adopt the budget—but we are presenting the Council with a recommended path for us to follow in our "budget journey," and asking for your concurrence(or course adjustment) on this strategic direction. The Challenge Facing Us. While this is presented in more detail below, the short answer is that our projected budget gap has grown since we prepared the General Fund five-year fiscal forecast in December 2002. At that time, we projected we were facing an average annual gap over the 3- / Strategic Budget Direction Page 2. next five years of $5.5 million. For the first two years of the forecast-2003-05, the average annual gap was $5.2 million, including using the beginning reserve above our policy minimum of$1.9 million. Based on new information since then, we are now projecting this gap to be $6.9 million annually. Using the reserve balance above our policy minimum—which is now estimated to be $1.2 million (instead of$1.9 million) based on the Projected Budget Gap:2003-08 2002-03 Mid-Year Budget Review presented $2,000,000 to the Council in February—reduces this gap $1.0oe.aoe to $6.4 million (assuming an even allocation soover the two years). (st,0M.0om on ,nme Cempver. M,OW,0m) At a minimum, this means that our general W.00e.00e, strategy needs to be based on closing a $6.9 Me0eM) L million gap. However, the hard fact is that ($6.000.aoo) meow) the gap is not static: as much as we would (58,W0,M) like to "pick a number and stick with it," pFWxe9,:D°c°m0°r 20e2 0 F 1:PAAso°-Maf&2= many unknowns remain, including State budget impacts, trends in key revenues like sales tax and transient occupancy tax (TOT), funding major City goals and other important Council objectives, and "external" added costs, like insurance. The new era of perpetual uncertainty. And while we believe we will have better information by the time we prepare and issue the Preliminary Financial Plan in mid-May, the fact is that uncertainty regarding our fiscal situation is going to be with us well beyond budget adoption. For example, one of the "biggest shoes yet to drop" is how the State's budget process will ultimately affect us. And many are projecting that the State might not adopt a budget at all for 2003-04 (constitutional requirements to do so by June 30, 2003 notwithstanding). Additionally, even if sales tax results from the Christmas quarter of 2002 were encouraging (which we don't know yet) and we were to see a turn around in TOT trends, the fact is that it is much too early to assess the impact of the war in Iraq on these key revenues. In short, to paraphrase a former President, we need to make ambiguity our friend—because it's going to be our budget traveling companion for a long to come. And to do this effectively means remaining vigilant in following our fiscal policies and planning ahead as best we can. Budget Balancing Strategy Because from following this course will come our financial strength and flexibility in o New Revenues effectively navigating the unknown shoals 15% ahead of us. a Reserves Our Proposed Strategy. As a starting point 9% 0 CSP for Council consideration, our proposed 53% strategy in closing the estimated $6.9 million ❑Operating Expenditures:76% gap consists of the following elements, which Programs are described in more detail later in this 23% report: 3-2 • J Strategic Budget Direction Page 3. 1. Using available reserves above minimum policy levels. 2. Developing a General Fund capital improvement plan (CIP) that is the lowest possible while reasonably maintaining our existing infrastructure and facilities. 3. Reducing operating program costs and related service levels. 4. Implementing selected new revenues as allowed under Proposition 218. DISCUSSION Background: What We've Already Done While the challenges facing us are significant, we are not starting off flat-footed. Based on the "six-point" Fiscal Health Contingency Plan (see sidebar) we prepared in October 2001, we have had an "early warning" system and general strategy for responding to the alarms. This has resulted in the following preventative measures. 1. Hiring"chill" in place for over a year. 1. Maintain reserves at minimum 2. Hiring -freeze now in place pending "strategic policy level. budget direction approval." 2. Follow other key budget and 3. Travel-training chill in place for over a year. fiscal policies. 4. 2002-03 budget reductions of $1.8 million: CIP 3. ongMonoing basil health on an g ongoing basis. reduced by $1.3 million and operating budget reduced by $500,000. 4. Assess the challenge: short or longterm problem. These actions have played a large role in producing the 5. Identify options. $1.2 million reserve that we will be able to use in 6. Prepare and implement action helping to balance the budget for 2003-05. plan. Ongoing Commitment to Cost Containment and Customer Service. Additionally, the City is committed to an ongoing program of productivity improvements. The most recent example of this is the new contracting system for construction projects—'job order contracting"—for lower costs, faster execution. Based on the Plan action steps, we have completed "Step 4: Assessing the Challenge" via the five-year forecast (and the update to it presented in this report), and we know that we are facing a long-term problem of about $6.9 million annually. This leads us to "Step 5: Identifying Options," which is the fundamental purpose of this report. Updated Forecast: $6.9 Million Annual Gap for 2003-05 As previewed above, we are facing a revised gap for 2003-05—excluding use of the reserve of above our minimum policy level—of about $6.9 annually ($6.4 million assuming its use). The following is a summary of the factors underlying the update from the December 2002 forecast:. 3;3 Strategic Budget Direction Page 4 Where We Got Better Although they are far outweighed by adverse changes, there are two areas in the update that are favorable compared with the December forecast: 919 Paha Offices ($237,400). The forecast assumed that Community Development and Public Works would occupy the 16,000 square feet of the office space that will be built in conjunction with the parking structure planned at the corner of Palm and Morro as part of the Copeland retail project on Court Street. The net cost of this for debt service and C hpinges Sinc-e the December 2002 Forecast building operations and - Annual maintenance, after factoring in 2003-04 2004-05 Average rental income from the vacated 919 Palm o 237,400 118,700 space at 955 Morro, was Cal Poly Fire Fees 32,000 32,000 32,000 $237,400 beginning in 2004-05. Revised Carryover (700,000) u o (350,000) Two things have caused us to no Increased PERS (240,000) (240,000) (240,000) longer assume this cost: Insurance(Guesstimate) (300,000) (300,000) (300,000) POST Reimbursements (80,000) (80,000) (80,000) Local Law Enforcement (100,000) 0 (50,000) 1. Simply based on the revised Golf Subsidy (33,000) (34,000) (33,500) timing of the Copeland Creek and Flood Protection (33,000) (33,000) (33,000) it is unlikely that this Revised VLF Estimate (41,000) (43,000) (42,000) project, Y Business Tax (37,000) (38,000) (37,500) cost would begin in 2004-05 Airport Area Annexation 0 (225,000) (112,500) (although it will be there in Copeland Project 0 150,000 75,000 Total Chane 1,532,000 873,600 1,202,800 2005-06 if the City is the Revised Gap 5,364,200 7,405,000 6,394,600_ building Occupant). Note:Excluding the use of carryover above our policy minimum ($600,000 on an annual basis),the gap would be$6,694,600. 2. More importantly, based on our fiscal circumstances, we no longer recommend that the City be the tenant of first choice for this space: if we can find a suitable tenant-which most likely means another governmental agency (because of federal use requirements under the planned tax-exempt bond financing) that is interested in a lease of five years or less-we recommend leasing the space to them. However, this is a big "if," and we need to do more research on financing options and market interest in leasing the space before making a final decision on this. Cal Poly Fire Fees ($32,000). Based on our current contract with Cal Poly for fire services, we estimate additional revenues of$32,000 above the forecast estimate of$135,000 annually due to calls for service above the base level. Where We Got Worse Revised Carryover ($700,000). As discussed in the 2002-03 Mid-Year Budget Review presented to the Council in February 2002, we project that the ending balance for 2002-03 (the "carryover" into 2003-05) will be $700,000 less than projected in the forecast. While there are a number of factors underlying this, key ones include: funding the Housing Element update ($155,000), completion of the Airport, Margarita and Orcutt Area Specific Plans ($130,500); increased property insurance costs ($21,000) and booking fees ($45,000); and State cuts in mandated cost reimbursements ($70,000) and police training reimbursements ($55,000). ? Strategic Budget Direction Page 5 Increased Retirement Costs ($240,000). The forecast for 2003-04 was based on the best estimates available to us from our retirement system administrator (PERS) at the time. Since then we have received our confirmed employer contribution rates for 2003-04, and they result in retirement costs that are $240,000 higher than the forecast estimate. Insurance ($300,000). The forecast assumed an increase of $250,000 in workers' compensation, general liability and property insurance costs. Based on preliminary information from our insurance provider, this is likely to be at least $300,000 higher. As discussed in a companion report also being presented to the Council on April 10, 2003, it may be even higher than this. However, it is still too early to know what this final cost will be, but if we can limit it to just this higher estimate of$550,000 from 2002-03, we will be doing well. Police Training (POST) Reimbursements ($55,000). Consistent with the Mid-Year Budget Review revision, we are not projecting revenues from this source at this time. Law Enforcement Grant ($100,000). Based on the State's fiscal condition, we are not projecting revenues from this source at this time. Golf Fund Subsidy ($34,000). Consistent with the Mid-Year Budget Review, we are estimating that the golf fund subsidy will be $34,000 higher than the forecast projection. Creek and Flood Protection Fund ($33,000). Consistent with the Mid-Year Budget Review, we are estimating that the General Fund subsidy to this fund will be $33,000 higher than the forecast due to lower Zone 9 reimbursements. Vehicle License Fees (VLF) and Business Tax Revenues ($79,500). These downward revisions are consistent with the revised estimates in the Mid-Year Budget Review. Airport Area Annexation ($225,000) and Copeland Project ($150,000). The forecast assumed new revenues of $450,000 resulting from the Airport Area annexation and $200,000 from the Copeland project in 2004-05. We are still projecting revenues at these annual levels from these new generators; however, based on revised timing for these projects, we are projecting less revenue in the first year. The Gap Is Not Static As noted above, this is our best estimate of the gap facing us at this time, and it provides an important framework for our budget-balancing efforts. However, since the underlying factors driving this gap are not static, the gap itself cannot be static. As such, it will most surely change based on better information when we issue the Preliminary Financial Plan—and continue to change afterwards. The most likely areas of change include: 1. Our assumptions regarding the impact of State budget decisions. 2. Sales tax and TOT estimates. 3. Funding for major City goals. 4. "External" significant operating cost increases; like insurance. 3S C D Strategic Budget Direction Page 6 While it is certainly possible that these factors could change in a positive direction, experience tells us that the opposite direction is more likely: However, even though the gap will change, on an "order-of-magnitude" basis, we believe the revised estimate is a reasonable basis upon which to define the problem and tailor a responsive strategy. How Does Our Fiscal Problem Compare with Other Cities? Virtually every city in the State is facing the same PERS and insurance cost pressures; and the same impacts on revenues dues to the "Perfect Storm" of September 11, the dot.com implosion and the impact of corporate scandals on investor confidence in the stock market. And many of them are considering the same options we are. The only difference between the fiscal problems facing us and many other cities in California is that we may have recognized it sooner—and are taking steps to communicate and deal with it straightforwardly at an earlier time. Compared with some cities, we also go into this process in good financial shape with strong, clearly articulated fiscal policies as a foundation. We have an excellent "civic infrastructure" in our community, a tradition of good govemance by our elected officials and an organizational culture that will enable us to deal with this problem in a responsible, thoughtful way. In the final analysis, it is these intangible factors that are our greatest strength as we undertake the tough decisions that are ahead of us. Proposed Budget Balancing Strategy The proposed budget balancing strategy consists of the following components. ❑ New • • • Rewrkms Amount Percent 15% Reserves 600,000 9% Added Revenues 1,059,400 15% g% ❑cw Reduced Expenditures 53% Capital Improvements 3,729,200 53% ❑❑peming Expenditures:76% Operating Programs 1,606,000 23% Programs Total $6,994,600 100% 23% As reflected above, while reserves and added revenues play an important role, over 75% of the proposed budget-balancing strategy relies upon expenditure reductions. Where Did These Pieces Come From? In putting together the "metrics" of our proposed budget-balancing strategy, we considered a number of sources, including: 3-� C Strategic Budget Direction Page 7 Community Feedback. As part of the budget process, there has been extensive community involvement through advisory bodies, surveys, letters, budget workshops and the Community Forum. In crafting our proposed budget-balancing strategy, we tried to be very sensitive to what we've heard. On balance, while there is a wide range of varying interests, there is one common thread to the feedback we've received, which is contrary to the conventional wisdom about wanting government to do less. As reflected in the 600 responses we received to our utility billing survey, the fact is that almost everyone wants the City to keep doing the Level of Attention same things-or more: more street Budget Category t Cu en pared to maintenance, more open space protection, Less_ Same I_Moe more growth management, more bikeways, Housing/Growth Issues 8 14 27 more transit service, more parks . . . . . . . Neighborhoods/Cal Poly 4 27 17 While not scientific, the survey results from Streets&Traffic 9 26 12 the community forum are also reflective of Water, Sewer&Recycling 6 29 11 this: while interest vanes between categories, Open Space/Natural 7 27 12 in no service area did a majority of Resources respondents want "less;" in fact, in every Transit&Bikeways 12 23 13 category, the overwhelming interest was for Parks&Recreation 7 29 12 the "same or more." Economic Development: Jobs/Tourism/Downtown 7 19 18 And there is "scientific" data supporting this Public Safety 2 23 12 indication for "same or more" City services. In the professional public opinion survey conducted three years ago in May 2000, 72% of the community rated the City's services as good or excellent; and this may help explain the more informal results of"more or same." Council. We have strived to be responsive to the results of the Council's goal,setting process, and to the general guidance that the Council provided to us on February 4, 2003: that our budget- balancing strategy should include some combination of reserves, CIP and operating expenditure reductions and added revenues as allowed under Proposition 218. "Front-Line' Employees. We have extensively involved and engaged our employees throughout the organization, both in communicating the problem and in generating thoughtful solutions. This process resulted in over 500 "bright ideas for dark times" from employees from all departments in the City. Many of these are reflected in the proposed budget-balancing strategy, and many others are undergoing further review of the "in-the-pantry" ideas that may be brought to bear on challenges facing us in the longer-term. Employee Unions. We have worked very closely with the leadership of our employee associations, and we will continue doing so. They have been very helpful and supportive in this process. Department Heads. After receiving the "bright ideas" from their employees, Department Heads made specific recommendations to the CAO on those they thought should be strongly considered as budget-balancers for 2003-05. (The criteria we used in making this assessment are discussed below.) In follow-up to this, the Department Heads and CAO met for eight hours over 3 -7 Strategic Budget Direction Page 8 several days in discussing these ideas, and reaching consensus on the general strategy reflected in this report. CEP Review Team. Along with other coordinating duties, one of the primary responsibilities of this group is to review all CIP budget requests and make recommendations to the CAO. Its members include the Directors of Public Works, Utilities, Community Development, Parks & Recreation, Finance, Police Chief and Principal Administrative Analyst. The CIP component of the proposed budget-balancing strategy reflects the results of their review.. Evaluation Criteria Based largely on the framework set forth in the Fiscal Health Contingency Plan, we used the following criteria in preparing the proposed budget-balancing strategy: 1. Timing: Can it be implemented by July 2003? 2. Is it within our control to do? 3. Is it reasonable and balanced? Does it reflect shared sacrifice? 4. Is it focused on service impacts and priorities—not an "across-the-board" approach? 5. Is it sensitive to costs and "affordability?" 6. Does it maintain essential facilities, infrastructure and equipment at reasonable levels? 7. Have we left anything in reserve (in the "pantry")? The Components:Reserves We recommend using our reserves above the minimum policy: $1.2 million ($600,000 on annual basis). We may recommend going below this at some point in the process, but this should be a "pantry" item in the event of even more severe events, such as cuts to the "VLF Backfill." The Components:Added Revenues The following summarizes our revenue recommendations. It is important to underscore that we are not asking the Council to formally approve these added revenues at this time. There needs to be meaningful opportunities for community input and discussion on these, as well as added information such as comparisons with other communities and the impact of these increases on our users. Formal approval needs to follow this added community input and analysis. As such, adoption of any changes should occur concurrently with budget adoption, which is currently scheduled for June 17, 2003. On the other hand, if the Council has serious reservations about any of these proposals, we need to know this now so we do not rely upon some (or all of these_) as partof the solution if in fact there is not Council majority support for at least seriously considering_ them as the budget process goes forward. Strategic Budget Direction Page 9 Higher planning fee cost Owobwzrlm - recovery. For most of our Higher Planning Cost Recovery development review functions, Current Fees: 100%vs 45%cost recovery 500,000 such as building, engineering and New Fees Appeals 0 $250 each 5,000 fire pan check and inspections, it is Other Services 13,700 the City's policy to recover 100% Parks and Recreation Fees 30,000 of our costs through fees. Fire Fees However, it is the City's policy to Cal Poly 32,000 only recover 45% of the cost for Other Services 3,700 Trash Franchise Fees:6%to 10% 210,000 most planning services. (This Water and Sewer Franchise Fees:2%to 3.5% 250,000 includes 25% of the cost of long- Sewer Lateral Encroachment Fees 15,000 range planning.) On one hand, this JTdtal $1,059,400 reflects the value that the community at-large receives from this review process. On the other hand, if the applicant—who drives the need for the City to incur this cost—pays less than the full cost, then general-purpose revenues are making-up the difference. In the context of the fiscal challenges facing us; the practical consequence of this will be deeper cuts in services that rely heavily on general-purpose revenues, such as police, fire, street maintenance and parks. Moreover, since such a large portion of planning review costs are subsidized by the General Fund, this means this function is subject to a reduction as well, at a time when development activity is at an all-time high. Given these trade-offs, we recommend moving from 45% to 100% cost recovery on our current . fees. We believe this is reasonable in the overall context of the City's cost recovery policies. Moreover, this will also benefit the development community, by helping to mitigate reductions that might otherwise be required in our development review function. Based on projected revenues at the current cost recovery rate of 45%, we project that moving to 100% (under the current costing methodology) will generate about $500,000 in added revenues annually. In implementing this added cost recovery, we recommend an approach used by many other cities for planning cost recovery: collecting at the building permit stage (as a surcharge on the permit fee) rather than at the planning permit application stage. This has the benefit of recovering these costs when the applicant has a "real project" (rather than just the hope for one), and the fees can be financed like other development costs. We also recommend four new fees for services where there is currently no cost recovery: appeals, administrative approvals, land use documentations and Mills Act (property tax reductions for historic properties) applications. 1. Appeal Fees ($5,000). The Council has considered the issue of"free" appeals several times in the past. The fact is that the average appeal costs the City about $4,000 each to process; and there is a general belief that because they are free, we have more of them than warranted by the policy circumstances alone. Based on a recent survey of the practices in over 80 California cities, the overwhelming prevailing practice is to assess a fee of some kind, even if at a modest level, with fees ranging from $50 to $2,088. Locally, we are the only agency in the County that does not have an appeal fee. As shown in the chart below, appeal fees in the seven local agencies (including the County) range from $50 to $474 (and in Morro Bay, 2— Strategic Budget Direction Page 10 which sets the appeal fee at 50% of the original application fee, it could be higher than $474 on a case-by case basis depending on the type and complexity of the project being appealed.) We recommend setting an appeal fee at $250: it reflects a very low cost recovery of 6%: and it is in the mid-range of the fees charged by other local agencies. However, given its a Arroyo Grander$195 relatively small revenue potential, this is fundamentally a . Atascadero: $200 policy issue, not a budgetary one. . Grover Beach: $150 2. Administrative Approvals ($2,400). Our current fee schedule o Morro Bay: 50%of is largely based on when advisory body or Council approvals application fee (minimum$120) are required. However, there are a number of approvals that . Paso Robles: $100 are made at an administrative level by the Community . Pismo Beach: $300 Development Director for which we have no fee. We do . SLO County: $474 about 10 of these per year, and based on an analysis of preparation time, we recommend a fee of$239. 3. Land Use Documentation ($4,300). We commonly receive requests from lenders and others for a detailed analysis of allowed uses on specific properties. These go far beyond simple requests for zoning information. We prepare about 30 of these per year, and based on an analysis of preparation time, we recommend a fee of$143. 4. . Mills Act Application ($7,000). We process about 4 applications annually for participation in this property tax reduction program for qualifying historic properties. Based on an analysis of research, review, evaluation and processing time, we recommend a one-time application fee of$1,740, which is less than the first-year annual savings that will continue on indefinitely. Parks and recreation fees ($30,000). This includes $5,000 annually from the rental of the Johnson Ranch house and $25,000 from higher cost recovery for federally-mandated snacks currently provided at no extra cost. For program participants, this will result in a modest fee increase of $20 for the school-year programs (compared with the current year-round fee of $1,300, assuming full attendance during the year at $2:60 per hour); and $10 for summer camp programs (compared with the current fee of$850, assuming full attendance for eight weeks). Fire fees ($35,700). This reflects added revenues from three areas. An additional $32,000 in cost recovery from providing fire services to Cal Poly calls in excess of the "baseline" level, based on contact re-negotiations currently underway with them. However, it should be noted that Cal Poly has expressed concerns about any fee increases. We will have a better idea of the likelihood of this added revenue within a few weeks. The added revenue estimate also includes better implementation of our existing "excessive inspection" fee ($2,000) and minor changes in "occupancy"class for hazardous occupations ($1,700). Trash franchise fees ($210,000). The City levies franchise fees on refuse services for two reasons: to receive reasonable compensation for the use of our right-of-way; and to help offset the impact of heavy equipment on pavement life and related maintenance costs. The current franchise rate is 6%. However, the prevailing rate in the County is 10%: this is the rate in all unincorporated areas (where more than half of the County's population lives) as well as the cities and community service districts in the South County except Pismo Beach. Given its prevalence throughout the County, and its modest impact on ratepayers (about 39 cents per month for a 32- gallon can customer), we recommend setting our rate at 10%. Strategic Budget Direction Page 1.1 Water and sewer franchise fees ($250,000). It is the City's long-standing policy to treat the water and sewer funds in the same manner as if they were privately owned.and operated. In addition to setting rates at levels necessary to fully cover the cost of providing water and sewer service, this means assessing reasonable franchise fees. Again, the underlying basis for this is the same as other public utilities that pay franchise fees like electricity, gas, trash and cable television: reasonable compensation for the use of the City's right-of-way. The appropriateness of charging the water and sewer funds a reasonable franchise fee for the use of City streets— currently set at 2% of revenues—is further supported by the results of recent studies in Arizona, California, Ohio and Vermont which concluded that the leading cause for street resurfacing and reconstruction is street cuts and trenching for utilities. The state-regulated franchise fee for gas and electric is 2% of revenues; and the federal-regulated rate for cable television is 5%. We recommend setting the rate at the mid-point of these: 3.5%. As discussed below under "Enterprise Fund Participation," it is our goal to absorb this increase cost in the water and sewer fund through offsetting belt-tightening and cost reductions, and not through rate increases. Sewer lateral fees. Under the City's incentive program for private property owners to replace their deteriorated sewer laterals, the sewer fund currently reimburses the General Fund about $15,000 annually for inspection and encroachment fees.. However, this is not based on our standard fee schedule. Using this as the basis for reimbursement will increase General Fund revenues by $15,000 annually. The Components: CIP Reductions Detailed information on each specific CIP project request will be included with the Preliminary Financial Plan, and will be the sole focus of discussion at the special budget workshop scheduled for May 27. As such, it is not our intent to fully evaluate the General Fund CIP at this time. However, we do want to get Council concurrence on the underlying approach we plan to take in preparing it: to focus on maintaining what we already have. As discussed above, our goal is to present for the Council's consideration a General Fund CIP that is the lowest possible in reasonably maintaining our existing infrastructure and facilities. Compared with past CIF's, this approach will result in the following kinds of cuts, reductions or deferrals in General Fund projects: 1. No General Fund money for open space acquisition. 2. No General Fund money for 919 Palm (at least for the next two years). 3. No further street sign replacements. 4. No park improvements. (We will do necessary maintenance and replacements, but not enhancements or additions.) 5. No CIP reserve. 6. No new sidewalks. 7. Reduced pavement maintenance ($750,000 per year). 8. Reduced police patrol vehicle replacement frequency ($78,000). Strategic Budget Direction Page 12 9. Reduced public art (by about 75% to $13,000 annually: we recommend setting aside 1/2% for public art—rather than the 1% called for under our policy—for consistency with our private sector requirements.) 10. Deferred Garden Street makeover to 2005-07 ($300,000).. Basically, if it's "new" or"added"—and funded by the General Fund=we do not plan to include it in the Preliminary Financial Plan. This "essential maintenance only" focus saves $3.7 million annually from the forecast assumptions for CIP costs. Important Caveat: There will still be some "new" projects underway in 2003-05, such as: 1. Currently-funded projects just getting started, like the Damon-Garcia sports fields and Ludwick Center remodel. 2. Enterprise Fund projects, like water reuse. 3. Grant-funded projects, like landscaped medians on Los Osos Valley Road. 4. Impact fee-funded projects, like the railroad safety trail. The essential distinguishing feature of the recommended strategy is no funding for "new or added" projects in the 2003-05 Financial Plan from the General Fund. Related to this concept, it should be noted that Engineering design, inspection and project management resources will not be significantly affected by this due to the large workloads on the "non-General Fund" projects noted above. The Components: Operating Reductions After using reserves, considering reasonable revenue options and reducing CIP costs to the lowest level possible in reasonably maintaining our existing infrastructure and.facilities, all that's left in balancing the budget is reducing operating costs and related service levels. In this case, assuming that all the other pieces of the budget-balancing pie remain in place, this means cutting operating cuts by $1.6 million. As such, we have devoted significant efforts over the past several months in surfacing operating reduction options in all departments. And because operating cuts are the primary variable in our budget-balancing equation, it was essential to surface options that are more than the resulting "target" of$1.6 million. Attached are the results this of this 2003-05 Operating Cost Reduction o tions process, which identifies $2.4 million Department FrE's• cost in options from all departments, Administration,City clerk,City Attorney 1.30 209,600 representing a reduction from 2002- Human Resources 0.23 60,900 P g Finance 1.50 201,000 03 operating costs of about 7% from Community Development 1.35 203,300 each department. Organized by Parks and Recreation 4.40 156,000 dedepartment, this summary provides Public Works a.20 537,100 P mn1�' P Police 4.00 677,300 the following information for each I Fire 3.00 352,900 option: Total 19.99 $2 397100 Full-rime Equivalent Employees Strategic Budget Direction/ Page 13 1. Affected program within the department. 2. Description of the option. 3. Its impact on services. 4. Reduction in"full-time equivalent" (FTE) staffing. 5. Annual savings. For several of the options, such as shifting the cost of maintaining landscape planters in parking lots from the General Fund to the Parking Fund, there is no service impact: it simply reflects better cost accounting. However, for many of the options, there would be significant impacts, and this is why it is important that we have "non-operating" budget balancers in the mix; and within the operating budget arena, an array of reduction options that is greater than the "net" we're looking for. Otherwise, this would simply be an "across-the-board" exercise that doesn't take into account service priorities. It is important to stress that these are options. It is too soon to make specific recommendations at this time for several reasons: 1. First, do the other pieces make sense? If not,.we will have to go deeper than the $1.6 million "target." 2. What is the gap we're trying to close? As discussed above, we will have a better (but not perfect) picture of this by mid-May. 3. And we need more time to analyze service impacts and priorities. Again, we plan to address this in the Preliminary Financial Plan. Lay-Off Avoidance. As part of our budget-balancing efforts, it is almost certain that we will reduce authorized regular positions at some level. However, this is not the same as laying-off an existing employee, especially if the position is vacant. While we would not recommend staffing reductions based solely on which positions are vacant—this needs to be done on a service impact-priority basis, and vacancies happen due to serendipity—vacancies do provide added organizational flexibility. And creating this flexibility is the underlying reason for the hiring restrictions that have been in place for the last eighteen months. In short, while we do not want to be driven by vacancies in reducing costs, it has been our conscious goal to avoid regular staff lay-offs. Of the 19.95 FTE's included in operating cost reduction options, none of them would result in regular staff lay-offs. Participation of the Enterprise Funds in this Process The enterprise funds—water, sewer, creek& flood protection, parking, transit and golf—account for almost 50% of the City's financial operations. While the fiscal problems facing the City are in the General Fund, the enterprise funds are also participating in the budget- balancing/expenditure reduction process. In several cases, they are an integral part of the General Fund's balancing strategy for both new revenues and expenditure reductions. With these added costs, there will be added pressure on rates. However, it is our goal through belt- jr—/5 /1 J Strategic Budget Direction Page 14 tightening and cost reductions to absorb these costs .and to avoid rate increases above what would otherwise have been required. Long Story Short: The enterprise funds are not exempt from budget reductions. Budget-Balancing Strategy Recap The proposed strategy will go a long way towards closing the gap for the long-term. However, it is important to stress that it is focused on balancing the budget for 2003-05, and relies upon a reduced CIP that is probably not sustainable for the long-term. Moreover, we are relying on using one-time reserves—albeit above policy levels—to help fund CIP improvements in 2003- 05. They won't be there in 2005-07: we can only spend our savings (which is what the reserve is) once. In the Pantry:Longer-Term Options In preparing for the longer term, we have a number of items "in the pantry" that we will be taking a closer look at in the coming months. Most of them are not "ready for prime time" now (which is why they are still in the pantry), but with more analysis and community review, they could be in the longer term. 1. Going below the reserve policy level. Depending on how the State budget process ends up affecting us, we may need to do this in order to buy time in developing longer-term solutions, including possible implementation of these pantry items. 2. Development review enterprise fund. Moving all of our development review functions to full cost recovery—which some cities in California have done—on an enterprise fund basis could shift almost $2 million in net costs away from the General Fund. On the other hand, it would also mean significant fee increases. 3. Development impact fees. We are in the process of updating our transportation impact fees. Additionally, as many other cities have done, we could consider impact fees for general government facilities. 4. Paramedic cost recovery. Several communities in California have implemented subscription fees for paramedic service: for a modest annual fee (such as $30 per year), subscribers are eligible for unlimited use of paramedic services. However, non-subscribers who use the service pay a much higher"per call" rate that reflects the full cost of the service. 5. Contracting out services to other agencies. This might include providing City services like GIS, information technology or fire service to other agencies in the County. 6. Sale of surplus property and equipment. We have formed a special task force to evaluate this option. 7. Sponsorships. We may want to become more aggressive in seeking out sponsorship opportunities. c� -/4' Strategic Budget Direction Page 15 8. Revenue ballot measure. This option is fully evaluated in the Long-Term Fiscal Health major City goal work program. 9. Unpaid furloughs. Depending on employee interest, this could include things like staffing savings from closing City offices between Christmas and New Years; without paying employees for these days. 10. Not charging the General Fund for water and sewer fees. The General Fund pays for water and sewer service like any other customer. Largely for park irrigation, this costs the General Fund over $300,000 annually. However, many cities in California do not charge themselves for these services. This raises a number of policy issues, but at some point, we may want to more seriously consider this option. 11. Other "bright ideas." There are a number of other "bright ideas" submitted by employees that are under review. Selective Lifting of the Hiring Freeze Pending development and approval a clear budget-balancing strategy, we have completely frozen all new recruitments for regular staff positions since January. However, after Council approval, we plan to selectively lift this freeze for critical positions that are clearly not affected by any of the operating cost reduction options. Filling positions will still require CAO approval on a case- by-case basis; but with a clearer sense of direction, we should resume filling essential-service positions that are highly unlikely to be affected by our final budget-balancing decisions. SUMMARY The purpose of this step in the budget process is to present the Council with a conceptual strategy for balancing the budget for 2003-05. Its purpose is not"budget approval:" that process will begin with issuance of the Preliminary Financial Plan in mid-May, with five Council study sessions/hearings to follow before budget adoption. Moreover, there are still too many unknowns—both on the revenue and expenditure side—for a "final' plan at this point in the process. However, in preparing the Preliminary Financial Plan, we need "strategic" guidance from the Council on key pieces of the budget-balancing pie. We plan to issue the Preliminary Financial Plan on May 15, which will be followed by special budget workshops on May 22, 27 and 29; regular Council meeting review on June 3; and continued review and budget adoption on June 17. ATTACHMENT 2003-05 Operating Cost Reduction Options G:Budget Folders/2003-05 Financial Plan/Budget Balancing Strategies/Agenda Report—April 10,2003 C C city of san Luis osispo 2003-05 Operating Cost Reduction Options Department FMIS• cost Administration, City Clerk and City Attorney 1.30 209,600 Human Resources 0.23 60,900 Finance 1.50 201,000 Community Development 1.35 203,300 Parks and Recreation 4.40 156,000 Public Works 4.20 536,100 Police 4.00 677,300 Fire 3.00 352,900 Total 19.98 1 $2,397,100 Full-Time Equivalent Employees Page 1 i 0 C 0 LO LO _ N N O o T a W N O O C C y y m — m c° c .. 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E - E d d Y > r «+ C t0 O N 0govas � rn'0CD (D . cc ECc dmmc) a 3m ) CL-yo c v w Cc a m m c`— v U m m m m CO Nc0ccOo - c° Ea) m ->, co CO CD CO y d O C 3 E .9 ._ C C O. y O C N d d ° Uo � �m � cao E mE Eo c Y m m y mi c a' E o CD -r- m ro v d m L U - a V L m .- 0 c9 •y f6 U, N E O C CO Rl : cya _ m _ N U O)~ L cC4 ~ y CD O_ L N '� L m V U fA y L O- C. C 0 C E V O N O O O G� y d m 0 O C d C C G. 0 •C cdA w ca d E m •c6 ,E a. a U y 07 E >, CO Of � N N m cC d 7 O. 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N L C W O` NO �cmC O dc" Cc$O nN p� y wa 'O >, CO2oN dU Cc CSS 0 � ¢ Wco � mn0 � � cQ Nam N0N '� > 'aQmwoZctl tM O c. oyE CISr W co a� o u o o y d y W E a o cn w m cm m o W . x :Q 0 V Q ` = 07 m W m E N 7 — d y y > U 7 C y o d U R 0 C C r C O = Q f.1 7 C d O..� m i V co V � Z o � `at p 'ca Qm — 0 :° m c E o,� c a o • W Vit y um cam c. yOLL -a w o c0m_m o CL*a na U Zj CM E c G o rL a` O Z cm e Ln 0 0 0 0 A ° C o o m o cm b O N N N N CV C' C C C E E E E V O Q Q Q Q 0 0 0 o t° co o U M a m o 111 N ' � O Nm : , V m E E Y C C •> . CO :E 0.'— .7 L .3 E m cm 0 o O'.° 8 O ca C O m In C m y E 7 U O U C T m O i O �o CO U L y m C :: O m O Y m m I'- y m Cj i 0 `L O 0 c 0 Q y ° y 0 N m E ® y ca O > t O. fC co ym E. CO IC C ICC U .� C L O_ m Y G m R O � L E C •p W m � O) O O xm C6 V E g c (D— (D aci m y ca � o—c- Z CL U •_ y O -cc , to Q O _ 0 O 'O YO y d Y Z ��+ U y C- IC .0 y ..: m E y N y m 9 ,n a L U C > >. y E .0 L 0 E O. m y m ® y C m m 'O 0) O 01 0 °' U E ca m 0 0 C ° 0 m O V m C m m m m m 0 C Zcc c co ° y m �,CD y C 0 ° m �L .0 C1 m E. O y C m y y O. C Y CS E y d y O L ` m ° 3 > y C m 3 O � 0 cam E -6a cyn � " . ao mwom yc yE ° CLL0momoLLn m0 - 07 'D a: C mm CU Q 3 ca U y U It O 0 U 3 .c a ,- co J E o c m r w > o w0 c0 = « t > m ' v ui c m w y m 0 Y D m y C7 .. o D 0j a m 7 m C E -0 d 0) -O m Lm.. O L O a ° a0 0 0 m - m c 0 rn~ N 0 -° cc c m CLO c c° ° E >m (On -Do � omm 0 0 mt . 0 O m m L CL r_ cmIp i a m c 0 .0 C L — C y Y (�Q C CL o ° ° > wE 05 `m m m c C3 *6D m of rn CD co N ' m co 0 Lo C y ) v a 3 m « ro m C � _° _ CD "0 a � momm � � 0yo� > aC � m Cm mm Z p U! m y c4 N L o O ° y ° " U O n D r y O W iC m y O w �$ p) ° Of Lm.. C .p p d >. 'O C CL F- y V m y Q m m .y 7 m L. O IC cr_ EL6 m m E 7 �. E C 'O C y Y m O= Q m vi n p a �n e E m 0.e r n m m y .� a m 0 c ° 'a 0 G. c m c U E m o ? 0 c GC _ m x 6 x . c W :+ CO m > U m 0I r y L \° O 0 cc p W e W .a U of � 0 � � � c � yj v,) 2cmm9 , 0-:30 80 `0 > Z a � o me am c o �� m •m c S E ° vim o fYn E W O ° v 3 y y 'O z 0 00 N m 2000 0w N d U OJ C C C C >T uJ 0 0 0 0 _ > E m a a 0 a p 0 a CL ` 0 z °f U U U U O u7 j '«cm C 0 oi! oil oi) cc N N 0 W W o 0 0 m a 0 N U C C E E E E E E E E E E a a ci v v 10 3-� J O O O O O O O . O O O O V N D CV r r y Lo W r ' � O E C.: Er c 0 3 E r m c 0 3.mo`oy � y ca ° m oEcL f mmE m mnEm ( �M 3M atmm coo ca M ° V C yicc O D Gm y ) LLO CD a OidE > 0 m Q m C CLCoaO— 0) 0 y CD- a L T C to m ro C r •7 D C U E "a c . 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E _ w0) � o0EA. r � Em ° ' 0 662 £ ° (D 2 � § @2 / p8 � ■ = 5 - ° ° � © c - a_ cC r � - � - � 2 �foaaC « 2QDcD ua2Eca 2 ) 9mE « cz 0o2 = 00= ) c � I &2 ■ - ` c = cc '0 5cr � , - � _ c ° CD0 - 0 - £ o , c - � caE COQ = = _ � � 0 coeo 5 . _ 0 § � E 0.6 —0 ctm.0 Q o 2 £ E +$ 000 0 $ � ( 0a) 0M a. C-)w ■ I $ 0 OD 2/ tCD E @ + 0 = 0 0 �CL © & k & § $ � > 0dm2 E 7D c $ 0 2 \ £ o o L ■ z0 0 /' 2 00c � C . - � a93 30 ) � . \ 7E § 0 � ■ IM o § ■ M 22 J o0 WQ C* m CL° § cm a: _ ■ U. /-�� `- RED FILE MEETING AGENDA ' DATEy//Olgg ITEM # _ San Luis Obispo Chamber of Commerce 1 Co-COUNCIL TCDD DIR 1039 Chorro Street • San Luis Obispo, California 93401-3278 [..CAO [3-FIN DIP (805) 781-2777 • FAX (805) 543-1255 • TDD (805) 541-8416 9-ACAO C!-FIRE CHIEF David E. Garth, President/CEO [g-ATTORNEY ['PW DIP l;2-CLERKIORIG G'POUCE CHF EP April 9, 2003 �� 0 IR R DIP Mayor Dave Romero RECEIVED Members of the City Council APR 0 c, 2003 City of San Luis Obispo SLO CITY CLERK 990 Palm Street San Luis Obispo, CA 93401 RE: 2003-05 Financial Plan, Item 3, Strategic Budget Direction Dear Mayor Romero and Council Members: At your April 10, Special Budget Workshop, you will be asked to consider a conceptual budget balancing strategy for 2003-05. Among the strategies suggested for added revenues, you are asked to consider (on page 3-9) higher planning fee cost recovery. As the staff report explains, it is currently the City's policy to recover 45% of the cost for most planning services. It is aptly noted that, on the one hand, "this reflects the value that the community at-large receives from this review process." Given the trade-offs of the possibility of deeper cuts in services and the possibility of a reduction of the function of planning review as it is currently subsidized by the General Fund, the CAO recommends moving from 45% to 100% cost recovery on the city's current fees. Part of the stated rationale for this proposal is that the development community will benefit because the 100% cost recovery will help mitigate reductions that might otherwise be required in the development review function. Herein lies the crux of the issue that we would like to highlight. While the Chamber's Board of Directors has not taken a position for or against the 100% cost recovery proposal, we are certain that no one in the development community will welcome paying more for less service. This is a very real concern. You will see that elsewhere in the budget workshop report, it is noted that limited staff resources in the e-mail: slochamber@slochamber.org • websites: www.slochamber.org www.visitslo.com Community Development Department have an effect in a number of areas including housing and the South Broad Street Corridor Plan. Our members often quote the old adage, "time is money," when referring to delays in receiving planning services at the City. The idea of private citizens hiring contract plan checkers has surfaced as a way to expedite the process, especially in view of the current staffing shortage. Bottom line, if you're going to ask the business person to pay more, please be sure that there is sufficient staffing in the planning department to provide consistent and efficient service. Sincerely, 4Leerrero Board Chair cc: Ken Hampian, City Administrative Officer John Mandeville, Community Development Director