HomeMy WebLinkAbout2013-0930 Study Session PACKET
CITY OF
'ASHLAND
ASHLAND CITIZEN'S BUDGET COMMITTEE
Monday, September 30, 2013
Council Chambers
1175 East Main Street
5:30 p.m. Agenda
1. Call to Order
2. Budget Process:
a. What worked this year for the first biennial budget?
b. What did not work?
c. What recommendations does the Committee have for the next process?
3. "Off Year" Meetings:
a. What suggestions do members have for Committee meetings or tasks during
the biennium (not the 2015-2017 process)?
b. Other suggestions.
4. Adjournment
CITY COUNCIL STUDY SESSION
Monday, September 30, 2013
Council Chambers
1175 East Main Street
6:30 p.m. Agenda (start time dependent upon the end of the Citizen's Budget
Committee Meeting)
1. Look Ahead review
2. Discussion regarding Review of financial management policy
In compliance with the Americans with Disabilities Act, if you need special assistance to participate in this
meeting, please contact the City Administrator's office at (541) 488-6002 (TTY phone number 1-800-735-
2900). Notification 72 hours prior to the meeting will enable the City to make reasonable arrangements to
ensure accessibility to the meeting (28 CFR 35.102-35.104 ADA Title I).
City of Ashland Council Meeting Look Ahead
"THIS IS A DRAFT AND SUBJECT TO CHANGE'""""
Departments
Responsible 9116 9117 9130 100 10114 10f15 10129 1114 M5 11118 11119 1212 1213 12116 12117 116 117 112.
1v4i gii 7Session inTSi'sk'i ou Roo'm~®~~ to
t Presentation on cost of service and rate design study for Electric Electnc SS
Mark
2 Council discussion of ordinance updates Dave L. Admin SS
3 Discussion of Jobs Council proposal (postponed from Admin SS
September 16 SS
1{dl<5: Re ulaa7rCOUncilfMeetin Imam== =M 015_
a Annual update from the Forest Lands Commission John Fire PRES
s Public Hearin and approval of new Elednc rates Mark Electric PH
6 Report and proposal from ORHA and ACCESS on a help center Admin UNFIN
for those in need Dave
Approval of council liaisons for SDC and Downtown Study PW NEW
workin rou s Mike
1029 Joint Meetin Parks 8 Council in Council Chambers - 10f29
Discussion of Parks funding and results of ad hoc committee Admin Parks
a work Dave/Don NEW
1114 Stu'd7Session iZSiski oulRoom ® ® Va
9 Continued discussion of short term home rentals in R-1 zonings CD Admin SS
Bill/Dave/Dave Legal
10 Future enhancements to the Plaza (request of Councilors Admin Ss
Slattery and Lemhouse
tits ff§NEIBEMMMFVo 11 Quarterly update on Economic Development Adam Admin CONS
12 First quarter financial report for biennium Lee Finance NEW
13 Amendment to Mt. Ashland agreement Dave L. Legal NEW
111AM-M Stud Session iRISis'k"i ou Room ® I7• 1vt
14 Discussion of regular reporting to Council by boards and Admin SS
commissions Dave
11119 Re u ar COunclllMeetin ® 11%19
is Acre lance of FY13 CAFR Lee Finance NEW
vv2 Stud Session in StsMr ou Room 2rz
tai Re ular CouncilTMeetin ® 12/3
16 Council decision on kee in or removing the Road Diet Mike PW NEW
12/18 Stud Session rn Siski ,OU Room _ _ - it• 1 i6
12;u77 Re'ular CouncitlMeetin ® l E17
17 System development charges update for water, sewer, and PW PH
transportation Mike
1e A roval of Budget Committee Appointments Barbara Recorder NEW
Page 1 of 2 9262013
City of Ashland Council Meeting Look Ahead
*****THIS IS A DRAFT AND SUBJECT TO CHANGE*****
Departments
Responsible 9116 9117 9130 1011 10114 10115 10129 1114 11/5 11118 11/19 1212 12/3 1211G 12J17 116 117 1120 1121
St'u3 Session in Sfs ou Room ~ ~ ~ ~ /s
n Re ular Cou°ncillMe'etin MW MW a
1e Unified Land Use Ordinance (ULUO) update (Bill) CD PH ORD-2
ORD-1
1 20 St'ud'ISe3si-onlCanceledf MLK4Ji4Da v2D
lrea Re`ufaTCOuneilTMeetin f~ !I® Ina'
20 Unified Land Use Ordinance ULUO update Bill CD ORD-2
Lon Te'rm7P.r'o'eits .sue `y„ v. 3*"° xaY" .3 ~ _ LIasi. :.v..
Telecom Franchise Agreements & Right of Way Usage
Discussion of regulating Me gri of medical marijuana in residential areas
Day use fac lhty for homeless
Discussion of direction to staff for study of veter rate structure that rewards consenni on and
help for lowtinconne individuals Who veter hills
Repm on preparations made for drought years
Update on City Wilding sustainahility report
Page 2 of 2 9/2612013
CITY OF
ASHLAND
Council Communication
September 30, 2013, Study Session
Update to Financial Management Policies and Accounting Methods in
Incorporated in the 2013-2015 Biennial Budget
FROM:
Lee Tuneberg, Finance Director, Administrative Services Department, tuneberl@ashland.or.us
SUMMARY
The City of Ashland Budget Document Appendix includes a general Financial Management Policy
section and Accounting Methods section that summarize and provide guidance on fiscal operations.
These documents also help the reader to understand the budget as a whole and how the individual
funds are managed from a financial or budget perspective. These policies and procedures are in need of
updating, especially considering the move to a biennial budget and changes in fiscal operations over
the last few years. This is a review to discuss potential changes. Final documents will need to come to
Council for approval.
BACKGROUND AND POLICY IMPLICATIONS:
The attached revised documents are consistent with many of the recent discussions in transitioning to a
biennial budget. There are limited changes, since these documents were reviewed in 2010 as part of
adopting the Governmental Accounting Standards Board Statement #54 that addressed changes in the
industry relating to terminology and categorization of monies held in the ending fund balance. There
are other changes that relate to recent reviews of taxes, funding and budgeting that may require
additional work as the City evaluates operations with the Parks Commission.
In the attached documents, existing language proposed to be struck is in red Italics and lined through.
Proposed new language is in red and underlined. Narrative or commentary information is in
parenthesis and in blue. The major changes are as follows:
1. Updating language for a biennial budget and other house-keeping corrections.
2. Adding the Health Benefits internal service fund.
3. Review of required ending fund balance/carry forward minimums and calculations needed with
a biennium budget. This revision proposes lowering the General Fund Ending Fund Balance to
10%, to reflect two year's worth of property taxes receipted in as operating income.
4. Consistent language and methodology for Contingency calculation is provided. Normally, a
minimum of 3% of operating expenditures is used to calculate Contingency for a fund.
5. Clarification that reserves for debt service are held where required or recommended.
6. An update of the expenditures for services provided in the General Fund.
7. An update to the types of revenue recorded in the Ashland Parks and Recreation Fund
recognizing the payment for services from the City rather than allocation of taxes receipts.
8. Clarification of the fund type for the Ashland Parks & Recreation Fund as a general type fund.
9. Clarification of the fund policy for the Ashland Parks and Recreation Fund.
Page I of 2
Ir,
CITY OF
ASHLAND
10. Clarification of Council authority for committing or assigning fund balances and subsequently
changing them per GASBS 54.
11. Adding the Health Benefits Fund.
12. In general, correcting titles or typographical errors.
Changes in these two documents may also require Council to take action on Resolution #2010-05
Establishing Target Ending Fund Balances and Resolution #2011-17 which provided compliance with
GASBS 54.
FISCAL IMPLICATIONS:
Most of these changes have no direct fiscal impact on the total budget. However, changes in
calculating a contingency or ending fund balance (minimum or target) or transfers is likely to impact
the total budget as presented but should have a positive influence on operations over the long tern.
STAFF RECOMMENDATION AND REQUESTED ACTION:
Staff recommends that Council review the proposed changes, ask for clarification and provide
direction necessary for staff to bring back the revised document for approval.
SUGGESTED MOTION:
This is a review so no motion to accept is necessary at this time.
ATTACHMENTS:
Financial Management Policies
Accounting Methodologies
Resolution #2011-17
Resolution 2010-05
Page 2 of 2
~r,
Financial Management Policies
The Financial Management Policies apply to fiscal activities of the City of Ashland.
Objectives
The objectives of Ashland's financial policies are as follows:
• To enhance the City Council's decision-making ability by providing accurate information on program and
operating costs.
• To employ revenue policies that prevent undue or unbalanced reliance on any one source, distribute the cost of
municipal services fairly, and provide adequate funds to operate desired programs.
• To provide and maintain essential public programs, services, facilities, utilities, infrastructure, and capital
equipment.
• To protect and enhance the City's credit rating.
• To ensure the legal use of all City funds through efficient systems of financial security and internal control.
Investments
All City funds shall be invested to provide-in order of importance-safety of principal, a sufficient level of
liquidity to meet cash flow needs, and the maximum yield possible. One hundred percent of all idle cash will be
continuously invested.
Accounting
• The City will maintain an accounting and financial reporting system that conforms to Generally Accepted
Accounting Principles (GAAP) and Oregon Local Budget Law. The City will issue a Comprehensive Annual
Financial Report (Audit report) each fiscal year. The Comprehensive Annual Financial Report shows fund
expenditures and revenues on both a GAAP and budget basis for comparison purposes.
• An independent annual audit will be performed by a certified public accounting firm that will issue an official
opinion on the annual financial statements and a management letter as needed or required detailing areas that need
improvement. (No management letter should be prepared if it is not needed or required.)
• Full disclosure will be provided in financial statements and bond representations.
• The accounting systems will be maintained to monitor expenditures and revenues on a monthly basis with
thorough analysis and adjustment of the ennuai biennium budget as appropriate.
• The accounting system will provide monthly information about cash position and investment performance.
• Annually, the City will submit documentation to obtain the Certificate of Achievement for Excellence in
financial reporting from the Government Finance Officers Association (GFOA).
Operating Budgetary Policies
• The budget committee will be appointed in conformance with stale statutes. The budget committee's chief purpose
is to review the city administrator's (budget officer's) proposed budget and approve a budget and maximum tax levy
for city council consideration. The budget committee may consider and develop recommendations on other financial
issues as delegated by the city council.
• The City will finance all current expenditures with current revenues. The City will avoid budgetary practices that
balance current expenditures through the obligation of future resources.
• The City budget will support city council goals and priorities and the long-range needs of the community.
• In contrast to the line-item budget that focuses exclusively on items to be purchased (such as supplies and
equipment), the City will use a program/objectives format that is designed to:
1) Structure budget choices and information in terms of programs and their related work
activities,
2) Provide information on what each program is committed to accomplish in long-term goals and in short-term
objectives, and
3) Measure the degree of achievement of program objectives (performance measures).
• The City will include multi-year projections in the budget document.
• To maintain fund integrity, the City will manage each fund as an independent entity in accordance with applicable
statutes and with generally accepted accounting principles.
• The City will allocate direct and administrative costs to each fund based upon the cost of providing these services.
The City will recalculate the cost of administrative services regularly to identify the impact of inflation and other
cost increases.
• The City will submit documentation for each adopted budget to obtain the Award for Distinguished Budget
Presentation from the Government Finance Officers Association.
Fund Balance Policy
General Fund
The General Fund accounts for all financial resources not accounted for in other funds. Resources include working
capital carryover, taxes, licenses and permits, intergovernmental revenue, fines and forfeitures, charges for services,
miscellaneous revenues, and inter-fund transfers. Expenditures are for Social Services, Economic and Cultural
Development, Police Department, Municipal Court Department, Fire and Rescue Department, City Band,
Cemeteries, and the Department of Community Development and payments for services provided by other funds.
This fund uses the modified accrual method of accounting. (The inserted text provides clarity.)
• The General Fund will maintain an unrestricted and undesignated balance of annual revenue of at least 12 percent.
(Change this to 10% for biennium budget? How is it impacted with all property taxes in General Fund?) This is the
minimum needed to maintain the City's credit worthiness and to adequately provide for economic uncertainties and
cash flow needs.
• The General Fund will maintain an unrestricted and undesignated balance of annual revenue of at least 12 (10%?)
percent. The City will budget a contingency appropriation to provide for unanticipated non-recurring expenditures or
shortfalls in projected revenues. The minimum contingency will be maintained at not less than 3 percent of annual
operating expenditures.
Special Revenue Funds
Special Revenue funds account for the proceeds of specific sources that are legally restricted to expenditures for
specified purposes. Special Revenue funds account for transactions using the modified accrual method of
accounting.
Reserve Fund. This fund is used to set aside funds to protect services and to stabilize the budget, and to meet any
costs that may arise in the future from unexpected events. As established by Resolution 2010-18.
Community Development Block Grant Fund This fund was established in 1994-95. The fund accounts for the
Block Grant and related expenditures.
• A fund balance policy is not needed since this fund works on a reimbursement basis.
Yw ur _d~mieiei-cr
Street Fund. Revenues are from the state road tax, grants, franchise fees, charges for services and miscellaneous
sources. Expenditures are for the maintenance, repair, and surfacing of streets, as well as the maintenance, repair and
construction of storm drains.
• The Street Fund will maintain On ^a ^-a °-a^°'°- ^a a committed balance of annual revenue of at least
15 percent. This is the minimum needed to maintain the City's credit worthiness and to adequately provide for
economic uncertainties and cash flow needs.
• The System Development Charges for Transportation and Storm Drains are included in the Street Fund balance.
This portion of the Street Fund balance is restricted and shall not be used in determining the minimum fund balance.
• The City will budget a contingency appropriation to provide for unanticipated expenditures of a nonrecurring
nature or shortfalls in projected revenues. The minimum contingency will be maintained at not less than 3 percent of
annual operating expenditures.
Airport Fund. Revenues are from airport leases, and fuel sales. Expenditures are for airport operations.
• The Airport Fund will maintain • °-'--`--°-•-'a committed balance of annual revenue of at
least 10 percent. This is the minimum needed to maintain the City's credit worthiness and to adequately provide for
economic uncertainties and cash flow needs.
• No portion of the Airport fund balance is restricted for specific uses.
• Many of the Airport assets have restrictions placed on them by the Federal Aviation Administration. None of the
current revenues are pledged to outside lenders.
• The City will budget a contingency appropriation to provide for unanticipated non-recurring expenditures or
shortfalls in projected revenues. The minimum contingency will be maintained at not less than 3 percent of annual
operating expenditures.
Capital Projects Funds
Capital improvement funds are established to account for financial resources that are used for the acquisition or
construction of major capital facilities (other than those financed by Enterprise Funds, Internal Service Funds,
Special Assessment Funds, and Trust Funds). Capital projects funds use the modified accrual method of accounting.
Capital fmproveeents Fund This fund accounts for revenues from grants, unbonded assessment payments, and
other sources, and will account for the construction of special local improvements, usually streets, with revenues
from short term borrowing and unbonded assessments. Expenditures are for construction, property and equipment
acquisition and replacement, improvements and related purposes including facility maintenance, and the repayment
of short-term debt principal and interest incurred in financing improvements. The purpose is to accumulate funds
prior to a large construction project; therefore, there is no minimum fund balance.
• The System Development Charges (SDCs) for Parks are included in the Capital Improvement fund balance. This
portion of the Capital Improvements fund balance is legally restricted and shall not be used in determining the
minimum fund balance. ,
and a °__a_. (There are no such restrictions in effect at this time or anticipated in the biennium.)
• The City will budget a contingency appropriation to provide for unanticipated non-recurring expenditures or
shortfalls in projected revenues. The minimum contingency will be maintained at not less than 3 percent of annual
revenges -operating Mendintres. (Correction to be consistent with policy on contingencies.)
Debt Service Funds
Debt Service Funds account for the accumulation of resources for, and the payment of, general long-term debt
principal and interest. Expenditures and revenues are accounted for using the modified accrual method of
accounting. All bond issues and notes are separated in the accounting system.
• All of the monies within the Debt Service fund are restricted for Debt service until the specific debt is repaid in
full. ORS prohibits cities from borrowing this money for any other purpose.
Enterprise Funds
Enterprise funds account for the following operations: (a) those that are financed and operated in a manner similar to
private business enterprise, where the intent of the governing body is that the costs (expenses, including
depreciation) of providing goods and services to the general public on a continuing basis be financed or recovered
primarily through user charges; or (b) those where the governing body has decided that periodic determination of
revenues earned, expenses incurred, and/or net income is appropriated for capital maintenance, public policy,
management control, accountability, or other purposes.
Enterprise funds use full accrual basis of accounting for financial statement presentations. However, the enterprise
activities use a modified accrual basis of accounting for budgetary purposes. This assures budgetary compliance
with such expenditures as capital construction and acquisition, as well as debt principal transactions.
Water Fund This fund accounts for water operations. Revenues are from sales of water, other charges for services,
and miscellaneous sources. Expenditures are for operations, conservation programs, capital construction, and
retirement of debt.
• The Water Fund will maintain an unrestricted and undesignated balance of annual revenue of at least 20 percent in
addition to any amounts . Held for repayment ofdebt. This is the minimum needed to
maintain the City's credit worthiness and to adequately provide for economic uncertainties and cash flow needs.
(Recognizes monies restricted for debt service.)
• The Water System Development Charges and reserved debt service fund balances are included in the Water Fund
balance. These portions of the Water Fund balance are restricted and shall not be used in determining the minimum
fund balance.
• The City will budget a contingency appropriation to provide for unanticipated non-recurring expenditures or
shortfalls in projected revenues. The minimum contingency will be maintained at not less than 3 percent of annual
revenues- operating expenditures. (Correction to be consistent with policy on contingencies.)
Wastewater Fund. This fund accounts for wastewater treatment and collection. Revenues are from charges for
services. Expenditures are for operations, capital construction, and retirement of debt.
• The Wastewater Fund will maintain an unrestricted and undesignated balance of annual revenue of at least 15
percent in addition to any amount required by debt financing. This is the minimum needed to maintain the City's
credit worthiness and to adequately provide for economic uncertainties and cash flow needs.
• The Wastewater System Development Charges are included in the Wastewater Fund balance. This portion of the
Wastewater Fund balance is restricted and shall not be used in determining the minimum fund balance.
• The City will budget a contingency appropriation to provide for unanticipated non-recurring expenditures or
shortfalls in projected revenues. The minimum contingency will be maintained at not less than 3 percent of annual
revenues operating' expenditures. (Correction to be consistent with policy on contingencies.)
Electric Fund. The Electric Fund accounts for the distribution of purchased electricity according to standards set
forth by the Federal Energy Regulatory Commission. Revenues are from sale of electricity and other charges for
services and intergovernmental grants. Expenditures are for related operations. Utility operations include wholesale
power purchases, operating expenses, energy conservation incentives, capital outlay, retirement of debt, franchise
tax, and related purposes.
• The Electric Fund will maintain an unrestricted and undesignated balance of annual revenue of at least 12 percent.
This is the minimum needed to maintain the City's credit worthiness and to adequately provide for economic -
uncertainties and cash flow needs.
• No portion of the Electric Fund balance is restricted for specific uses.
• The City will budget a contingency appropriation to provide for unanticipated non-recurring expenditures or
shortfalls in projected revenues. The minimum contingency will be maintained at not less than 3 percent of annual
operating expenditures.
Telecommunications Fund. The Telecommunications Fund accounts for the revenues and expenditures of the
Ashland Fiber Network.
• "rhe Telecommunications Fund will maintain a minimum balance of 20 percent of annual revenue as was
established in FY 2006-07.
• The City will budget a contingency appropriation to Provide for unanticipated non-recurring expenditures or
shortfalls in projected revenues. The minimum contingency will be maintained at not less than 3 percent of annual
operating expenditures. (Correction to be consistent with policy on contingencies.)
Internal Service Funds
Internal service funds account for the financing of goods or services provided by one department or agency to other
departments or agencies of the governmental unit, or to other governmental units, on a cost reimbursement basis.
Internal service funds use full accrual accounting methods for financial statement presentations. However, the
internal service funds use a modified accrual basis of accounting for budgetary purposes. This assures budgetary
compliance with such expenditures as capital construction and acquisition as well as debt principal transactions.
Central Services Fund This fund is divided into Administration, lnlormation Technology, Administrative Services,
City Recorder, and Public Works Administration/Engineering. Expenditures are for personnel, materials and
services and capital outlay for these departments. These functions are supported by charges for services by all direct
service departments and divisions. (Correction in title.)
• The Central Services Fund will maintain an unrestricted and undesignated balance of annual revenue of at least 3
percent. This is the minimum needed to maintain the City's credit worthiness and to adequately provide for
economic uncertainties and cash flow needs.
• No portion of the Central Services Fund balance is restricted for specific purposes.
• The City will budget a contingency appropriation to provide for unanticipated non-recurring expenditures or
shortfalls in projected revenues. The minimum contingency will be maintained at not less than 3 percent of annual
operating expenditures.
Insurance Services Fund. Revenues in this fund are from service charges from other departments, investment
income, and insurance retrospective rating adjustments. Expenditures are for insurance premiums, self-insurance
direct claims, and administration.
• The Insurance Services Fund will maintain an unrestricted and undesignated balance of $400,000 as
recommended in the June 1993 Risk Financing Study. This balance will be increased annually by the Consumer
Price Index (CPI) to account for inflation. This is the minimum needed to maintain the City's insurance programs
and provide for uninsured
exposures.
• No portion of the Insurance Services Fund balance is legally restricted for specific uses.
The City will budget a contingency appropriation to provide for unanticipated non-recurring expenditures or
shortfalls in projected revenues. The minimum contingency will be maintained at not less than 3 percent of annual
operating expenditures.
Health Benefits Fund Revenues in this fund are Primarily from service charges from other departments, investment
income and interfund loans as needed. Expenditures are for insurance premiums, self-insurance direct claims, and
administration.
• The Insurance Services Fund will maintain an unrestricted and undesignated balance of $500.000 as
recommended for self insurance programs.
• The Health Benefits Fund balance is legally restricted for the employee health benefits program.
The City will budget a contingency appropriation to provide for unanticipated non-recurring expenditures or
shortfalls in projected revenues. The minimum contingency will be maintained at not less than 3 percent of annual
operating expenditures.
Equipment Fund. This fund is used to account for the maintenance and replacement of the City fleet of vehicles and
specified equipment. Revenues are from equipment rental charges. Expenditures are for personnel, materials and
services, and capital outlay. This fund is divided into two functions: equipment maintenance and equipment
replacement. The purpose of the equipment replacement function is to accumulate adequate funds to replace
equipment. This replacement schedule is updated annually.
• No minimum fund balance is recommended beyond the amount calculated to sufficiently fund equipment
replacement.
• No portion of the Equipment fund balance is legally restricted for specific uses. The City has a policy of renting
equipment at rates that include the replacement cost of the specific piece of equipment.
•'rhe City will budget a contingency appropriation to provide for unanticipated non-recurring expenditures or
shortfalls in projected revenues. The minimum contingency will be maintained at not less than 3 percent of annual
e=operating expenditures. (Correction to be consistent with policy on contingencies.)
Trust and Agency Funds
Trust and agency funds account for assets held by a governmental unit in a trustee capacity or as an agent for
individuals, private organizations, or governmental units, and/or other funds. These include (a) expendable trust
funds, (b) non-expendable trust funds, (c) pension trust funds, and (d) agency funds.
Cemetery Trust Fund The Cemetery Trust Fund is a non-expendable trust fund that uses the accrual basis of
accounting. Revenues are from interest income and perpetual care service charges on cemetery operations.
Expenditures are for the repurchase of plots and transfers of earnings to the cemetery fund for operations.
• No minimum fund balance policy is recommended.
Discrete Components Unit
Parks
Parks and Recreation Fund. (Parks General Fund) Revenues are from-pF&peFOta*es, charges for services,
and miscellaneous sources. Expenditures are for parks, recreational, and golf course operations.
• The City will budget a contingency appropriation to provide for unanticipated non-recurring expenditures or
short alls in projected revenues. The minimum contingency will be maintained at not less than 3 percent of annual
operarinexpenditures. (Correction to be consistent with policy on contingencies.)
• A fund balance policy is not needed since this fund works on a reimbursement basis. (Added to be consistent
with new process.)
Parks Capital Improvements Fund. (Capital Projects Fund) This fund is used to account for resources from grants,
payments for services, and inter-fund transfers that are to be expended for equipment purchases and major park
renovations. The purpose is to accumulate funds prior to a large construction project; therefore, there is no
minimum fund balance. (Added to be consistent with new process.)
Revenues
• The City will estimate its annual revenues by an objective, analytical process. Because most revenues are
sensitive to conditions outside the City's control, estimates will be conservative.
• The City will make every effort to maintain a diversified and stable revenue base to protect its operation from
short-term fluctuations in any one revenue source.
With the exception of leeally restricted portions of the fund balance. Council action equivalent to that taken to
commit or assien fund balance can be done to unassien it.
• The City will establish charges for enterprise funds that fully support the total cost of the enterprise. Utility rates
will be reviewed annually. Rates will be adjusted as needed to account for major changes in consumption and cost
increases.
• The City will charge user fees to the direct beneficiaries of City services to recover some or all of the full cost of
providing that service. All user fees will be reviewed biannually to insure that direct and overhead costs are
recovered in the percentage approved by City Council.
• To the extent practicable, new development shall pay necessary fees to meet all identified costs associated with
that development.
• The City will work aggressively to collect all delinquent accounts receivable. When necessary, collection
procedures will include termination of service, submission to collection agencies, foreclosure, and other available
legal remedies.
EE enditures
• The City will provide employee compensation that is competitive with comparable public jurisdictions within the
relative recruitment area.
• Estimated wage increases and changes in employee benefits will be included in the proposed budget under
Personnel Services.
• The City is committed to maintaining and improving the productivity of its staff by providing a proper working
environment, adequate equipment and supplies, and appropriate training and supervision.
• A Social Service appropriation will be included in the proposed General Fund Budget. This appropriation will
increase or decrease relative to the overall General Fund revenues.
• An Economic, Cultural Development, Tourism and Sustainability appropriation will be included in the proposed
General Fund Budget. This appropriation will increase or decrease relative to the overall Transient Occupancy Tax
Revenues.
Purchasing
• The City will purchase materials, supplies, and equipment through a competitive process that provides the best
product for the least cost.
Caadal
• The City will provide for adequate maintenance of equipment and capital assets. The City will make regular
contributions to the Equipment Replacement Fund and the City Facilities budget to ensure that monies will be
available as needed to replace City vehicles and facilities.
• Future operating costs associated with new capital improvements will be projected and included in the long-term
budget forecast.
• The City will determine and use the most appropriate method for financing all new capital projects.
• Special accounts dedicated for capital improvements will be segregated in the accounting system and used only for
the intended capital purposes.
• The Capital Improvement Plan will encourage a level capital replacement schedule.
Debts
• The City will not use long-term borrowing to finance current operations.
• Capital projects, financed through bond proceeds, will be financed for a period not to exceed the useful life of the
project.
• Whenever possible, enterprise debt will be self supporting. Regardless of the type of debt issued, the City will
establish a one-year reserve for all self-supporting debt.
• The City will seek to maintain and improve its bond rating to minimize borrowing costs and to ensure its access to
credit markets.
• The City will keep the final maturity of general obligation bonds at or below 20 years, with the exception of water
supply and land acquisition that will be limited to 30 years.
• The City will maintain good communications with bond rating agencies about its financial condition.
Risk Management
• The City will provide an active risk management program that reduces human suffering and protects City assets
through loss prevention, insurance, and self-insurance.
Accounting Methods
General Fund
This fund accounts for all financial resources except those accounted for in another fund. Resources include working
capital carryover, taxes, licenses and permits, intergovernmental revenue, fines and forfeitures, charges for services,
miscellaneous revenues, and inter-fund transfers. Expenditures are for Social Services, Economic and Cultural
Development, Police Department, Municipal Court Division, Communications, Fire and Rescue Department,
Community Development, Planning Division, and the Building Division, Cemetery and other administrative
programs as needed This fund uses the modified accrual method of accounting. (To identify other programs funded
here.)
Special Revenue Funds
Special Revenue Funds account for the proceeds of specific revenue sources that are legally restricted to
expenditures for specified purposes. Special revenue funds account for transactions on the modified accrual method
of accounting.
Reserve Fund. This fund is used to set aside fund to protect services and to stabilize the budget, and to meet any
costs that may arise in the future from unexpected events. As established by Resolution 2010-18.
Community Development Block Grant Fund. This fund was created in 1994-95. The fund accounts for the Block
Grant and related expenditures.
Street Fund. Revenues are from the state road tax, franchise fees, charges for services and miscellaneous sources.
Expenditures are for the maintenance, repair, and surfacing of streets, as well as maintenance and construction of the
storm
water runoff infrastructure.
Airport Fund. Revenues are from airport leases. Expenditures are for maintenance of airport facilities.
Capital Projects Fund
Capital improvement funds are established to account for financial resources that are used for the acquisition or
construction of major capital facilities (other than those financed by enterprise funds, internal service funds, special
assessment funds, and trust funds). Capital projects funds use the modified accrual method of accounting.
Capital Improvements Fund. This fund accounts for revenues from grants, nonbonded assessment payments, bond
proceeds, and other sources, and will account for the construction of special local improvements, usually streets,
with revenues from short-term borrowing and non bonded assessments. Expenditures are for construction, property
and equipment acquisition and maintenance, improvements and related purposes, and the repayment of short-term
debt principal and interest incurred in financing improvements.
Debt Service Fund
The Debt Service Fund accounts for the accumulation of resources to be used for payment of the debt incurred for
the acquisition or construction of major capital facilities (other than those financed by proprietary funds, and trust
funds). Expenditures and revenues are accounted for on the modified accrual method of accounting.
Bancroft Bonds revenues are from Bancroft (Local Improvement District) bonded assessments. These are expended
for the retirement of local improvement district bonded debt principal and interest until such debts have been
fulfilled.
General Bonds revenues are from property taxes that are expended for the retirement of general obligation debt
principal and interest.
Notes, Contracts, and Liens revenues derived from operating transfers from other funds are used to repay long-
term contracts that are not bonded.
Enterprise Funds
Enterprise funds account for the following operations:
(1) those that are financed and operated in a manner similar to private business enterprise, where the intent of the
governing body is that the costs (expenses, including depreciation) of providing goods and services to the
general public on a continuing basis be financed or recovered primarily through user charges; or
(1) (2) those where the governing body has decided that periodic determination of revenues earned, expenses
incurred, and/or net income is appropriated for capital maintenance, public policy, management control,
accountability, or other purposes.
Enterprise funds use full accrual basis of accounting for financial statement presentations. However, the enterprise
activities use a modified accrual basis of accounting for budgetary purposes. This assures budgetary compliance
with such expenditures as capital construction and acquisition, as well as debt principal transactions.
Water Fund. This fund accounts for water operations. Revenues are from sales of water, other charges for services,
as well as property taxes dedicated to the retirement of general obligation bonds. Expenditures are for operations,
conservation programs, capital construction, and retirement of debt.
Wastewater Fund. This fund accounts for wastewater treatment and collection. Revenues are from charges for
services. Expenditures are for operations, capital construction, and retirement of debt.
Electric Fund. This fund accounts for the distribution of purchased electricity according to standards set forth by the
Federal Energy Regulatory Commission. Revenues are from sale of electricity and other charges for services and
intergovernmental grants. Expenditures are for related operations. Utility operations include wholesale power
purchases, operating expenses, energy conservation incentives, capital outlay, retirement of debt, and franchise tax.
Telecommunications Fund. This fund accounts for telecommunications operations. Revenues are from cable TV,
Internet connections, and high-speed data. Expenses are for operations maintenance, capital construction, and debt
service.
Internal Service Funds
Internal service funds account for the financing of goods or services provided by one department or agency to other
departments or agencies of the governmental unit, or to other governmental units, on a cost reimbursement basis.
Internal service funds use full accrual accounting methods for financial statement presentations. However, the
internal service funds use a modified accrual basis of accounting for budgetary purposes. This assures budgetary
compliance with such expenditures as capital construction and acquisition as well as debt principal transactions.
Central Services. This fund is divided into the following Divisions: Elected Officials, Administration,
~i
Administrative Services, Legal, Customer Services, Accounting, Purchasing, Public Works Administration,
Engineering, Maintenance, Computer Services, and the City Recorder. These Divisions fall under the umbrellas of
the Administration, Finance, Public Works, and the Electric Departments. These functions are supported by charges
for services by all direct service divisions and departments.
Insurance Services Fund. Revenues in this fund are from service charges from other departments, investment
income, and insurance retrospective rating adjustments. Expenditures are for insurance premiums, self-insurance
direct claims, and administration.
Insurance Services Fund. Revenues in this fund are from service charges primarily from other departments,
investment income, and internal loans. Expenditures are for insurance premiums, self-insurance direct claims, and
administration.
Equipment Fund. This fund is used to account for the replacement and maintenance of the city's fleet of vehicles.
Revenues are from equipment rental charges. Expenditures are for personal services, materials and services, and
capital outlay.
Trust and Agency Funds
Trust and agency funds account for assets held by a
governmental unit in a trustee capacity or as an agent for individuals, private organizations, or governmental units,
and/or other funds. These include (a) expendable trust funds, (b) non-expendable trust funds, (c) pension trust funds,
and (d) agency funds.
Cemetery Trust Fund. The Cemetery Trust Fund is a non-expendable trust fund that uses the accrual basis of
accounting. Revenues are from interest income and perpetual care service charges on cemetery operations.
Expenditures are for the repurchase of plots and transfers of earnings to the general fund for operations.
Discrete Component Unit
Parks
Parks and Recreation Fund. (Parks General Fund) Revenues are from the parks and recreation pextien-ef-E' he
pmperfy-tas_levj~, charges for services, and miscellaneous sources. Expenditures are for parks and recreational
purposes as well as department operations.
Ashland Youth Activities Serial Levy Fund. (Special Revenue Fund) Revenues are from a three-year Ashland
Youth Activities local option property tax levy. Expenditures are for community and youth activities and recreation.
This fund closed to the Parks and Recreation fund as of July I, 2013.
Parks Capital Improvements Fund. (Capital Projects Fund) This fund is used to account for resources from grants
and inter-fund transfers that are to be expended for equipment purchases and major park renovations.
Thesefunds use the modified accrual method of accounting. (To clarify accounting methodology used for all
Parks funds.)
RESOLUTION NO. ;tO II • 17
A RESOLUTION IMPLEMENTING GOVERNMENTAL ACCOUNTING
STANDARDS BOARD STATEMENT 54 - Fund Balance Reporting and
Governmental Fund Type Definitions
THE CITY OF ASHLAND RESOLVES AS FOLLOWS:
The City of Ashland prepares financial reports in keeping with generally acceptable accounting
principles (GAAP) as established by national and state guidelines. The Governmental
Accounting Standards Board (GASB) is the primary organization that provides financial
reporting requirements through their statements on accounting standards.
GASB has issued statement 54 that standardizes presentations of fund balances in governmental
fund types to promote consistency and comparability between entities.
City of Ashland must adopt and implement GASBS 54 to be compliant with GAAP reporting for
the FY 2011 in the comprehensive annual financial report.
SECTION 1. Council adopts the guidelines provided in GASBS 54 for accounting and reporting
of governmental type funds effective with the fiscal year ending June 30, 2011.
SECTION 2. The existing funds and elements of fund balance that are thought to be subject to .
changes by this implementation include, but are not limited to:
Agency Funds Component Category Comment
City of Ashland General Asset Forfeiture Restricted Federal Money
TOT Tourism (117) Restricted State Restriction
TOT (517) Committed Council Resolution
.Parking Surcharge Committed Council Resolution
Public Art Committed Council Resolution
Fiscal Stability Study Committed Adoption of Budget
Affordable Housing Committed Council Resolution
Remaining Balance Unassigned
Treated Like General Fund
Reserve General balance Unassigned until a policy is adopted
CDBG General balance Restricted Federal Money
Street Gas TO Restricted Site Restriction
SOc's Restricted Slate Restriction
Remaining Balance Committed
Page I of 2
Agency Funds Component Category Comment
City of Ashland Airport General balance Committed
Capital Improvement System Development Charges Restricted State Restriction
Food and Beverage Committed Voter Approval
Remaining Balance Committed
Debt Service General balance Restricted Debt service commitment
Cemetery Trust General balance Restricted Perpetual care
Parks 8 Recreation General Fund General balance Unassigned
Youth Activity Fund General balance Restricted Voter Approval
Capital Fund General balance Committed'
SECTION 3. New funds and new revenues identified after approval of this resolution shall be
evaluated for consistency with GASBS 54 and will be accounted for and reported accordingly.
SECTION 4. Copies of this resolution shall be maintained in the Office of the City Recorder and
shall be available for public inspection during regular business hours.
SECTION S. This resolution takes effect upon signing by the Mayor.
This resolution was read by title only in accordance with Ashland Municipal Code §2.04.090
duly PA ED and ADOPTED this 7 day of June, 2011.
Barbara Christensen, City Recorder
SIGNED and APPROVED this Ov, day of 2011.
n Stromberg, Mayor
Revi ed as to form:
,~J ltC--
avid Lo an, City Attorney
Page 2 of 2
RESOLUTION NO.6WIQ-0
A RESOLUTION ESTABLISHING TARGET ENDING FUND BALANCES
THE CITY OF ASHLAND RESOLVES AS FOLLOWS:
The City of Ashland currently has Ending Fund Balance (EFB) targets established in the
accepted Financial Management Policies incorporated within the budget document.
These EFB targets are a primary tool in assuring financial viability to the City and aids
in flexibility. When percentages are provided they represent a calculation on annual
operating revenue and the dollar figure is an estimated amount. When no percentage
is given, only a dollar figure, the amount shown is the minimum target. No target is
established for a fund when no amount or percentage is given.
SECTION 1. Council adopts the following targets in either a percentage or dollar format
as provided below.
SECTION 2. The percentages or dollars presented will be adjusted annually in the
budget process.
City of Ashland
Fund Balance Worksheet
FY 2011
Proposed
and EFB Target %
General $ 1,722,000 12%
CDBG - N/A
Reserve. - N/A
Street 460,000 15%
Airport 10,000 10%
CIP 500,000 N/A
Debt - restricted 2,400,000 N/A
Water 900,000 20%
Wastewater 750,000 15%
Electric 1,488,950 12%
Telecommunications 372,000 20%
Central Services 174,000 3%
Insurance Services 1,000,000 N/A
Equipment 1,600,000 N/A
Cemetery Trust N/A
Subtotal $11,366,950
Paiks 8 Recreation $ 1,230,000 25%
CIP - NIA
YAL NIA
Subtotal $ 1,230,000 -
TOTAL $12,596,950
Page 1 of 2
SECTION 3. Annual Operating Contingencies will be calculated on operating
appropriations in the 3% to 5% range as recommended by staff and approved by the
Citizen Budget Committee
SECTION 4. Copies of this resolution shall be maintained in the Office of the City
Recorder and shall be available for public inspection during regular business hours.
SECTION 5. This resolution was duly PASSED and ADOPTED this day of
February, 10.
Barbara Christensen, City Recorder
SIGNED and APPROVED this day of ~OP 2010.
n Stromberg, Mayor
Rev' wed s to If - rvrs
Richar AppicelloRichar CC mey
Page 2 of 2