HomeMy WebLinkAboutCOUNCIL - AGENDA ITEM - 07/15/2014 - RESOLUTION 2014-058 ADOPTING AMENDMENTS TO THE FINAgenda Item 13
Item # 13 Page 1
AGENDA ITEM SUMMARY July 15, 2014
City Council
STAFF
John Voss, Controller/Assistant Financial Officer
SUBJECT
Resolution 2014-058 Adopting Amendments to the Financial Management Policies.
EXECUTIVE SUMMARY
The purpose of this item is to approve a revised Budget Policy and revised Fund Balance Policy. Since the
last update, staff has developed a new framework for updating, controlling, formatting and publishing financial
policies. The financial policies evolved as part of the Budget document. In that context they focused on
explaining concepts rather than setting policy. Both of these revised policies were created based on policy
guidelines from the Government Finance Officers Association (GFOA) presented as best practices. As such,
the red line versions of the previous policies have many changes that are not substantive. Staff has come up
with a new format for financial policies to keep them consistent across all departments within Financial
Services.
STAFF RECOMMENDATION
Staff recommends adoption of the Resolution.
BACKGROUND / DISCUSSION
The financial policies evolved as part of the Budget document. In that context they focused on explaining
concepts rather than setting policy. Both of these revised policies were created based on policy guidelines
from the Government Finance Officers Association (GFOA) presented as best practices. As such, the red line
versions of the previous policies have many changes that are not substantive. Staff has come up with a new
format for financial policies to keep them consistent across all departments within Financial Services.
BUDGET - The last change to the Budget Policy was in 2005. The new structure follows GFOA
recommendations. The City Charter governs many aspects of the budget process. Specific references and
linkages to the charter are included within the revised budget policy. Additionally, the revised budget policy
includes:
A. An overview
B. Principles for budget planning
C. Scope - content of recommended budget, basis of budgeting and budget calendar
D. Roles and responsibilities
E. Budgeting control system
F. Balanced budget definition
FUND BALANCE- The last change to Reserve Policy was in 2008. The new proposed policy was developed
following GFOA’s best practices. Besides the major formatting changes, the significant policy changes are as
follows:
Agenda Item 13
Item # 13 Page 2
A. Updated and defined new terminology
B. Shifted focus to minimums, not maximums or target balances.
C. Clarified that the Emergency Reserve in the General Fund is in addition to the current 60 day minimum.
D. Special Revenues funds no longer are required to have a minimum balance. This is in alignment with
GFOA recommendations, in which dedicated revenues are intended to be spent on set purposes.
E. Internal Services Funds were all previously all 2% of operating expenses. The uniqueness of each’s
activity requires different approaches. The Equipment (fleet) Fund, Data & Communications Fund, and
Utility Customer Service Fund will no longer have a minimum balance. The Self Insurance Fund will
maintain a minimum of 25% of annual expenses and the Benefits Fund will maintain a minimum of 30% of
annual medical and dental expenses.
F. Utility Funds were simplified by combining several separate minimum balances into to a single 25% of
operating expenses, excluding power purchased for resale. Certain restrictions were removed that
referred to other balances mandated by other sources, i.e. Art In Public Places, Water Rights Reserve, etc.
Their objective is to restrict to purpose, whereas this policy is about maintaining minimum balances.
FINANCIAL / ECONOMIC IMPACTS
There are no immediate impacts. The long term strength of the City's financial and economic conditions
should be enhanced and preserved by following of these policies.
BOARD / COMMISSION RECOMMENDATION
The Council Finance Committee reviewed the proposed new fund balance policy on April 21, 2014 and the
proposed new budget policy on May 19, 2014.
ATTACHMENTS
1. Current Budget Policy (PDF)
2. Current Fund Balances Policy, with redline and strike through (PDF)
3. Council Finance Committee minutes, April 21, 2014 (PDF)
4. Council Finance Committee minutes, May 19, 2014 (PDF)
FINANCIAL MANAGEMENT POLICIES
TABLE OF CONTENTS
The Financial Management Policies are a compendium of all City policies that shape
the Budget. They are intended to assist the Council and the City Manager in preparing
the Budget and help communicate to residents and customers how the community
goals are being addressed.
BUDGET POLICY
1.1 Overview ......................................................................................................
1.2 Charter Process Requirements ....................................................................
1.3 Changes to Adopted Budget ........................................................................
1.4 Lapsed Appropriations .................................................................................
1.5 Budget Philosophy and Preparation ............................................................
1.6 Principles for Budget Planning .....................................................................
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BUDGET POLICY
1.1. OVERVIEW
The budget is a long-range plan by which the City Council sets financial policy. Through
the budget, services are implemented. The budget along with the annual appropriation
ordinance provides the basis for the control of expenditures. For the City of Fort Collins,
direction for the budget emanates from many distinct sources. The State Constitution
and the City Charter provide the basic legal requirements and time lines for the process.
Council goals, ordinances and resolutions provide additional direction and respond to
the needs of the community. (INCLUDED)
1.2. CHARTER PROCESS REQUIREMENTS
a. Budget Term
The fiscal year of the City is the calendar year. The City may adopt budgets for a
budget term of one fiscal year or more. After the Charter amendment in 1997
allowing the budget term to be more than one fiscal year, the Council has adopted
two-year budgets that correspond with the election cycle. (INCLUDED)
b. Budget Recommendation
On or before the first Monday in September preceding each budget term, the City
Manager shall file with the City Clerk a proposed budget for the ensuing budget
term along with an explanatory message. The proposed budget shall provide a
complete financial plan for each fund of the City and shall include appropriate
financial statements for each type of fund showing comparative figures for the last
completed fiscal year, comparative figures for the current year, and the City
Manager=s recommendations for the ensuing budget term. (INCLUDED)
c. Public Record, Hearing
The City Manager=s proposed budget shall be a public record and be available to
the public for inspection and copying. The City Council shall, within ten (10) days
after the filing of the proposed budget, set a time for a public hearing. At the
hearing, the public may comment upon the proposed budget. (INCLUDED)
d. Adoption of Budget and Appropriation of Funds
After the public hearing and before the last day of November preceding the budget
term, the Council shall adopt the budget, by ordinance, for the ensuing term.
Before the last day of November of each fiscal year, the Council shall appropriate
such sums of money as it deems necessary to defray all expenditures of the City
during the ensuing fiscal year. The appropriation of funds shall be accomplished
by passage of the annual appropriation ordinance. The appropriation of funds shall
be based upon the budget as approved by the Council but need not be itemized
further than by fund with the exception of capital projects and federal or state
grants, which shall be summarized by individual project or grant. (INCLUDED)
1.3. CHANGES TO ADOPTED BUDGET
After the commencement of the fiscal year, the amounts appropriated for the proposed
expenditures in the adopted budget are not subject to repeal and are considered
appropriated for the purposes specified. The expenditures of City operating funds
cannot exceed the budgeted appropriations for their respective fund. In certain cases,
however, adopted budgets may be increased, decreased, or amounts transferred
between funds.
a. Budget Increases (INCLUDED)
1. Supplemental Appropriations B The Council, upon recommendation by the
City Manager, may make supplemental appropriations from actual revenues
received, anticipated revenues, and prior year reserves provided that the total
amount of the supplemental appropriation plus previous appropriations for the
fiscal year does not exceed the actual or anticipated revenue total or the
available reserve balance. No appropriation can be made which exceeds the
revenues, reserves, or other funds anticipated or available except for
emergencies due to accident or unforeseen event arising after the adoption of
the annual appropriation.
2. Unanticipated Revenue B If a fund receives revenue during the fiscal year
from a source that was not anticipated at the time of budget adoption such as
grants, bond issue or implementation of a new fee, Council may appropriate
such revenue for expenditure.
3. Encumbrance Carryover B If a fund has open and valid purchase orders at
the end of a fiscal year, those related appropriations are encumbered and
carried over to the ensuing fiscal year and added to the budgeted
appropriations to cover the actual expense when it occurs.
b. Budget Decreases (INCLUDED)
The budget may also be decreased below adopted appropriations during the fiscal
year. Changes in service demand, economic conditions, projected growth limits,
and Council goals and direction may cause such budget reductions. Each service
area is responsible for developing a plan to reduce appropriations. Each plan must
be in place and ready for implementation should the need arise. If the City
Manager directs budget reductions, Council will be informed immediately and the
appropriations will be set aside through administrative action. While this
administrative action does not lower the appropriations within a fund, expenditures
from the fund shall not exceed the amount recommended by the City Manager. If
the circumstances leading to the implementation of reductions change, the
appropriations may be made available for expenditure.
c. Level of Control and Budget Transfers (INCLUDED)
1. Control of expenditures is exercised at the fund level. Fund managers are
responsible for all expenditures made against appropriations within their fund
and can allocate available resources within the fund.
2. During the fiscal year, the Council may by ordinance and upon the
recommendation of the City Manager, transfer any unexpended and
unencumbered appropriated amount from one fund or capital project account
to another fund or capital project account, provided that:
(a) the purpose for which the transferred funds are to be spent remains
unchanged;
(b) the purpose for which the funds were initially appropriated no longer
exists; or
(c) the transfer is from a fund or capital project account in which the
amount appropriated exceeds the amount needed to accomplish the
purpose specified by the appropriation.
1.4. LAPSED APPROPRIATIONS (INCLUDED)
All appropriations not spent or unencumbered at the end of the fiscal year lapse into the
fund balance applicable to the specific fund, except for:
a. Capital Projects - appropriations for capital projects which do not lapse until the
project is completed and closed out; and
b. Grant Funds - appropriations for federal or state grants which do not lapse until
the expiration of the grant.
Council can terminate a capital project or a federal or state grant at any time prior to
completion of the project or expiration of the grant.
1.5. BUDGET PHILOSOPHY
a. Philosophy (NOT INCLUDED)
The City of Fort Collins is committed to presenting a sound financial plan for
operations and capital improvements within growth limit guidelines. To achieve
this end, the City utilizes conservative growth and revenue forecasts and:
$ Prepares multi-year financial plans for operations and capital improvements;
$ Allows staff to manage the operating and capital budgets, with City Council
deciding allocations in both;
$ Adopts financial management policies which establish guidelines for multi-
year financial plans;
$ Establishes budgets for all funds based on adopted policies;
$ Appropriates the budget in accordance with the City Charter and State
Constitution;
$ Adjusts the budget to reflect changes in the local economy, changes in
priorities, and receipt of unbudgeted revenues;
$ Organizes the budget so that revenues are related to expenditures as much
as possible;
$ Provides department managers with immediate access to revenue and
expenditure information for controlling their annual expenditures against
appropriations;
$ Utilizes a performance measurement system for all activities in the City;
$ Evaluates recommendations that have a budget impact in light of annual
appropriations and multi-year financial plans.
b. Budget Preparation (INCLUDED)
While the Charter establishes time limits and the essential content of the City
Manager=s proposed budget and the adoption of the budget, the language is silent
on the budget preparation process.
The City=s Financial and Management Policies guide budget preparation and long-
range planning. The City Manager, Deputy City Manager, Budget Director, and
designated Service Area Directors develops the guidelines, consistent with the
Policies, to be used for budget preparation. The aforementioned individuals are
collectively referred to as the Budget Leadership Team. During the development of
the budget, various department and division representatives may be called on to
provide their expertise . In addition, the City Council and the Executive Lead Team
provide guidance during preparation.
The City=s 2006-2007 biennial budget was prepared using a process called
Budgeting for Outcomes (ABFO@). The purpose of utilizing the BFO approach is to:
$ Identify what=s important to a community and develop a sound financial and
service plan to achieve those outcomes;
$ Allocate dollars based on current priorities and results, not simply increase
last year=s spending;
$ Effectively deal with revenue limitations; and
$ Emphasize accountability, efficiency, innovation and partnerships.
In March, programs develop multi-year revenue projections and submit them to the
Budget Office. These revenue projections effectively Aset the price of government@;
the amount available for purchasing outcomes/results. City Council adopts the
outcomes/results that form the foundation of the budget. The revenues are then
allocated, by the Leadership Team, across the outcomes. Results Teams,
organized by outcome/result, prepare ARequests for Results@ (ARFR=s@) that include
strategy maps, two to three high level indicators to measure results, and
purchasing strategies. Sellers (departments/divisions) prepare Aoffers@ in response
to the RFR=s. The Seller=s offers are reviewed by the Results Teams, ranked, and
recommended for inclusion or omission from the City Manager=s recommended
budget, based upon the offer=s merits and the resources available, given the
outcome/result.
The City Manager=s budget recommendation is submitted to City Council before
the first Monday in September. The recommended budget is made available for
public inspection at this time. In September, a recommended budget-in-brief is
published in the local newspaper for public information. In addition, two public
hearings and Council work sessions are held in September and October. The
budget for the ensuing budget term is adopted no later than November 30.
1.6 PRINCIPLES FOR BUDGET PLANNING
The City provides a wide variety of services to the residents of the community. It is the
responsibility of City Council to adopt a budget and manage the available resources to
best meet the service needs for the overall good of the community. (INCLUDED)
To aid in planning for the allocation of resources to meet the good of the whole
community, Council adopted Resolution 2001-161, that set forth the Principles for
Budget Planning. Those Principles as adopted by Council are as follows: (NOT
INCLUDED FROM HERE DOWN)
a. The City should strive to attain the lowest possible interest rates on debt in order to
minimize the cost to taxpayers and users of City services.
b. The City should maintain adequate reserve levels to ensure minimal loss of service
to the community should there be unforeseen reductions in revenues or a
catastrophic occurrence.
c. Employees of the City are a valuable resource in providing services to the
community, and a compensation policy should be maintained for City employees
that reflects the value of attracting and retaining quality employees.
d. Primary services are those services that are necessary for the good of the entire
community. They are basic to the safety, health, and welfare of the community,
and the allocation of all resources necessary for the provision of primary services is
the first priority in budget preparation. Primary services are:
Police
Fire
Development Review
Affordable Housing
Neighborhood and
Building Services
Water
Transportation
Electric
Engineering
Pedestrian Access
Wastewater
Stormwater
Natural Resources
Facilities Maintenance
(all public facilities
including parks)
e. Secondary services are those services that enhance the quality of life of the
residents and to many, increase the value of living and working in the community.
While the value of secondary services is recognized, the allocation of resources to
those services shall be considered only after the necessary allocation has been
made to fund primary services. Secondary services are:
Recreation
Human Rights
Golf
Parks
Library
Human Services Contract
Natural Areas
Performing Arts
Cemeteries
Airport
Museum
f. Support services provide the management, guidelines, and operational assistance
to carry out the provision of primary and secondary services. Resources should be
allocated to support services to support the level and quality of primary and
secondary services expected and desired by the community. Support services are:
General Administration
Budget
Clerical Support
Information Technology
Real Estate Services
Finance
Human Resources
Fleet Management
Geographic Information
Systems
Legal
City Clerk
Municipal Court
g. No new services, other than those identified as primary services, shall be
undertaken by the City until all existing primary, secondary, and support services
have received a sufficient level of funding to meet the needs of the community.
h. Any adjustment to the existing budget shall take into account the effect that such
adjustment would have on future budget resources.
RESERVE POLICIESFUND BALANCE MINIMUMS
5.1. POLICY STATEMENTPURPOSE AND BENEFITS
The accumulation of reserves protects the City from uncontrollable increases in
expenditures or unforeseen reductions in revenues, or a combination of the two. It also
allows for the prudent financing of capital construction and replacement projects.To set
minimum fund balances so as to mitigate risks, maintain good standing with rating
agencies, and ensure cash is available when revenue is unavailable. The policy is sets
minimum fund balances, not targets or maximum balances. Each fund should be
evaluated by staff to determine the appropriateness of maintaining fund balances above
the minimums set in this policy. Contingencies for severe weather, prolonged drought,
and anticipated capital spending should be considered independently from this policy.
5.2 APPLICABLE TO
Funds – This policy applies to all City funds. It does not apply to URA, DDA, PFA and
Library.
5.32. GOVERNMENTAL TYPES OF FUNDS AND FUND BALANCESRESERVES
The Equity on balance sheet of a governmental fund is called Fund Balance. The
current classifications of Fund Balance in governmental funds are primarily based on the
origin of the constraints. The following categories are in decreasing order of constraints.
Non-Spendable Permanent endowments or assets in a non-liquid form
Restricted Involve a third party: State Legislation or Contractual Agreements
Committed Set by formal action of the City Council
Assigned By staff, and/or residual balances in a Special Revenue Fund
Unassigned Remaining balances in the General Fund
Minimums outlined in section 5.5 relate only to Assigned and Unassigned balances.
5.4 PROPRIETARY FUND AND WORKING CAPITAL
Internal Service Funds and Enterprise Funds are accounted for nearly identical to the
private sector. The balance sheets include long term assets and long term liabilities.
The resulting Equity section on their balance sheet, called Net Position, is not a good
measure of spendable financial resources. To get to spendable financial resources, a
common calculation is to take Current Assets and subtract Current Liabilities, with the
net result called Working Capital.
To further refine, for purposes of this policy, certain required restrictions are further
subtracted and result in Available Working Capital. Some examples of required
restrictions are unspent monies for Art in Public Places, Water Rights, and existing
appropriations for capital projects. The minimums outlined in section 5.5 relate to
Available Working Capital. The City of Fort Collins maintains reserves that are required
by law or contract and that serve a specific purpose. These types of reserves are
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considered restricted and are not available for other uses. Within specific funds,
additional reserves may be maintained according to adopted policies. All expenditures
of reserves must be approved by Council. This may occur during the budget process or
throughout the budget year.
5.5 MINIMUM BALANCES
The following Minimum Balances refers to Assigned and Unassigned Fund Balances in
governmental funds and Available Working Capital in the Internal Service Funds and
Enterprise Funds.
a. GENERAL FUND
Restricted for Emergencies - This reserve is required under Article X, Section 20 of the
State Constitution. This reserve can only be used for declared emergencies. Three
percent or more of the City's fiscal year spending, less bonded debt service must be
reserved
Designated for Affordable Housing - This reserve is restricted for affordable housing
use. City Council may appropriate funds for affordable housing purposes. Funds
appropriated for the promotion of affordable housing and not expended during the year
shall lapse to the Affordable Housing Reserve. Any appropriation from this reserve shall
be restricted for the purpose of affordable housing.
Designated for Contingencies - This reserve is what is left after all the other reserves
and designations are calculated. It is available for the financing of any needs deemed
appropriate by the City Council. Monies held in this reserve may be appropriated during
the current budget year and may also be used for the ensuing budget years as a
financing source if projected expenditures needed to maintain appropriate levels of
service exceed projected revenues. Of all General Fund reserves, this is the most
flexible.
60 Day Liquidity Goal - The Designation Commitment for Contingency should be at
least 60 days (17%) of the subsequent year’s originally adopted budgeted expenditures
and transfers out. The calculation for the minimum level shall exclude expenditures and
transfers out for large and unusual one-time items.
Important note – the 60 Day Liquidity Goal is in addition to the Restricted Balance
required by Article X, Section 20 of the State Constitution. This reserve must equal 3%
of non-exempt revenue and can only be used for declared emergencies. Fiscal
emergencies are specifically excluded by the State Constitution as qualifying use of this
reserve.
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b. SPECIAL REVENUE FUNDS
Examples of special revenue funds are: Transportation Services Fund, Natural Areas Fund,
Cemetery Fund, Cultural Services & Facilities Fund, Perpetual Care Fund, Recreation Fund,
Street Oversizing Fund, and the Transit Services Fund. The fund equity of special revenue
funds is classified as reserved or unreserved. Unreserved portions may be classified as either
designated or undesignated. Designated fund balances represent amounts identified by
management for future use. Reserved fund balances indicate that portion of fund equity,
segregated for future use, which are legally required to be segregated in accordance with legal
and contractual provisions.
Fund managers are allowed to identify fund equity designations (unreserved) provided
resources are available in excess of the fund equity used to fulfill reserved balances and those
designations determined by policy.
Designated for Operations – This reserve designation is established to provide for
unforeseen revenue losses. If something happens to the economy, there is flexibility without
worrying that current expenditures will exceed the total revenue available. The revenue
reserve is calculated, as a minimum, at an amount equal to 2% of projected operating
expenditures by fund. The Operations Reserve is not appropriated as part of the annual
budget, but may be utilized at the end of the fiscal year, if necessary.
No minimum balance is required.
c. DEBT SERVICE FUNDS
No minimum fund balance is required. Debt service funds are generally not expected or
managed to carry any fund balance reserves. Their function is to make debt payments, and
receive transfers from other funds to cover the payments, or collect special revenues
dedicated for debt service.
d. CAPITAL PROJECT FUNDS
No minimum fund balance is required.
d. ENTERPRISE FUNDS
Enterprise funds use full accrual based accounting. Their Equity or Fund Balance on a
balance sheet is referred to as Net Assets. In general, Net Assets are subdivided into three
areas, somewhat based on increasing levels of liquidity. The first division is Nets Assets
Invested in Capital Assets, less Related Debt. This class of Net Assets is not liquid at all, and
hence not subject to appropriation. The second division is Nets Assets Restricted to Debt
Service. This class of Nets Assets, if it exists at all, is imposed by debt covenants. Although
each covenant is unique, it commonly equals the next year’s debt service payments. The last
division is Unrestricted Net Assets, which ultimately is the remaining after the other two
divisions are satisfied. It is this class of net assets that the following policies
address.Enterprise funds focus on working capital rather than fund balance.
Enterprise Funds shall maintain a minimum Available Working Capital equal to 25% of
Operating Expenses, less Depreciation. In the case of L&P, operating expenses will include
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purchased renewable energy for resale but will not include regular purchased power for resale
(i.e. Platte River Power Authority).
Electric Utility
The following policies pertain to the electric utility-Light and Power Fund. Since the utility is
debt-free, these policies pertain primarily to maintenance of reserves. The utility shall be
operated:
1. To provide an operating reserve equal to 8% of budgeted operating expenditures, excluding
the cost of purchased power;
2. To provide a future capital improvements reserve in an amount equal to the average
annual cost (excluding debt financing) of the approved five-year capital improvement plan,
considering any changes which, from time to time, may be made in such plan;
3. To provide a purchase power reserve up to approximately 25% of the annual revenue
from the sale of electrical energy. This reserve shall be used to partially off-set, defer, or
mitigate the impact of purchase power cost increases due to factors such as federal power
issues. Significant changes to the 25% level shall be reported to the Council during the budget
process;
4. Capital Outlay Reserve – at an amount needed to maintain capital assets and equipment
reserve at an amount equal to the capital asset replacement schedule;
5. Priority for the accumulation of reserves shall be as follows: reserves shall first be
accumulated in the operating reserve, second in future capital improvements reserve, third in
the purchase power reserve. In addition, 1% of specified capital project appropriations shall
be reserved and restricted for the City's Art in Public Places program. After reserves are
funded, any remaining working capital shall be added to the purchase power reserve.
Water Utility
The following policies pertain to the water utility-Water Fund.
Flow of Funds
The City has committed to maintain rates and charges sufficient to generate sufficient “net
revenues” of the water system to pay principal and interest on its water revenue bonds and
general obligation water bonds. Net revenues include all revenues referred to above, less
operation and maintenance (O&M) expenses. O&M expenses are those expenses necessary
to operate, maintain, and repair the water system, but do not include any allowance for
depreciation or capital replacements and improvements. After all O&M expenses are paid, the
remaining net revenue is pledged to pay the revenue bonds principal, interest, and related
costs. After all O&M and debt services expenses are paid, the City is required to maintain the
following revenue bond accounts:
1. Principal and Interest Reserve - at an amount equal to the accrued principal and interest
on the water revenue bonds; or
2. Debt Service Reserve - at an amount specified in the bond ordinances.
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Any remaining net revenues of the Water Fund may be used for any lawful purpose. These
are used, in part, to fund major and minor capital improvements and the following reserves:
1. Operating Reserve - at an amount equal to 5% of the projected operating revenue for the
ensuing year;
Important note – The Water Fund holds a balance for 2. Restricted Water Rights. The
balance Reserve - at an amount equals to the amount of cash in-lieu-of water rights payments
and raw water surcharges less any expendituresexpenses for acquiring water rights and
water storage;
The enterprises funds should also be accumulating available working capital above these
minimums for the purposes of funding future capital projects. 3. Art in Public Places
Reserve - at an amount equal to 1% of eligible capital projects whose appropriations exceed
$250,000;
4. Capital Outlay Reserve – at an amount needed to maintain capital assets and equipment
reserve at an amount equal to the capital asset replacement schedule;
5. Capital Projects Reserve - at an amount equal to remaining working capital after all other
reserves are satisfied.
Wastewater Utility
The following policies pertain to the wastewater utility-Wastewater Fund.
1. Flow of Funds
The first charge against Wastewater Fund revenue is operation and maintenance (O&M)
expenses--those expenses necessary to operate, maintain, and repair the sewer system.
After all O&M expenses have been paid, the remaining net revenue is pledged to pay the
sewer revenue bonds principal, interest, and related costs. After all O&M and debt services
expenses are paid, the City is required to maintain the following reserve accounts (listed in
pledge order):
1. Principal and Interest Reserve - at an amount equal to the accrued principal and interest
on the sewer revenue bonds; or
2. Debt Service Reserve - at an amount specified in the bond ordinances.
3. Wastewater Bond Capital Reserve - at an amount equal to 25% of the O&M expenses
budgeted for the fiscal year.
Any remaining net pledged revenues of the Wastewater Fund may be used for any lawful
purpose. These are used, in part, to fund major and minor capital improvements and the
following reserves:
1. Operating Reserve - at an amount equal to 5% of the projected operating revenue for the
ensuing year;
2. Art in Public Places Reserve--at an amount equal to 1% of eligible capital projects whose
appropriations exceed $250,000;
3. Capital Outlay Reserve – at an amount needed to maintain capital assets and equipment
reserve at an amount equal to the capital asset replacement schedule;
4. Capital Projects Reserve - at an amount equal to remaining working capital after all other
reserves are satisfied.
Stormwater Utility
The following policies pertain to the stormwater utility - Storm Drainage Fund.
1. Flow of Funds
The first charge against Storm Drainage Fund revenue is operation and maintenance (O&M)
expenses-those expenses necessary to operate, maintain, and repair the storm drainage
system. After all O&M expenses have been paid, the remaining net revenue is pledged to pay
the storm drainage revenue bonds principal, interest, and related costs. After all O&M and
debt service expenses are paid, the City is required to maintain the following reserve accounts
(listed in pledge order):
1. Principal and interest reserve-at an amount equal to the accrued principal and interest on
the storm drainage revenue bonds;
2. Debt service reserve-at an amount specified in the bond ordinances.
Any remaining net pledged revenues of the Storm Drainage Fund may be used for any lawful
purpose. These are used, in part, to fund major and minor capital improvements and the
following reserves:
1. Operating Reserve--at an amount equal to 5% of the projected operating revenue for the
ensuing year;
2. Art in Public Places Reserve - at an amount equal to 1% of eligible capital projects
whose appropriations exceed $250,000; and
3. Capital Outlay Reserve – at an amount needed to maintain capital assets and equipment
reserve at an amount equal to the capital asset replacement schedule;
4. Capital Projects Reserve - at an amount equal to remaining working capital after all other
reserves are satisfied.
Golf Fund
Designated for Operations – This reserve designation is established to provide for
unforeseen revenue losses. If something happens to the economy, there is flexibility without
worrying that current expenditures will exceed the total revenue available. The revenue
reserve is calculated, as a minimum, at an amount equal to 2% of projected operating
expenditures by fund. The Operations Reserve is not appropriated as part of the annual
budget, but may be utilized at the end of the fiscal year, if necessary.
e. INTERNAL SERVICE FUNDS
Internal Service funds account for certain support services provided to other funds. By
imposing charges to the users of the services, they recover their costs. The City’s Internal
Service Funds are used to account for the City’s fleet maintenance (Equipment Fund),
management information services and communication services (Data and Communications
Services Fund), self-insurance of employee health care and other employee benefits (Benefits
Fund), and a risk management insurance program (Self Insurance Fund).
Accounting guidelines strongly encourage internal service fund to charge only enough to the
recovery of the cost of the service, including depreciation, rather than making a profit.
However, in certain situations it is appropriate to establish fund balance reserves policies. For
example, customer-approved master plans and independent third-party actuarial reviews
(Benefits Fund and Self Insurance Fund) guide the level of reserves.
Designated for Operations – This reserve designation is established to provide for
unforeseen revenue losses. If something happens to the economy, there is flexibility without
worrying that current expenditures will exceed the total revenue available. The revenue
reserve is calculated, as a minimum, at an amount equal to 2% of projected operating
expenditures by fund. The Operations Reserve is not appropriated as part of the annual
budget, but may be utilized at the end of the fiscal year, if necessary.Each fund is a unique
operation and will maintain a minimum Available Working Capital as follows:
601 Equipment Fund 8.3% Of annual operating expenses, excluding depreciation
602 Self-Insurance Fund 25.0% Of annual operating expenses
603 Data & Communications Fund 0.0% N/A
604 Benefits Fund 30.0% Of annual medical and dental expenses
605 Utility Customer Service Fund 0.0% N/A
5.6 BELOW MINIMUM
When circumstances result in balances below the minimum, staff should develop a plan
to restore minimums fund balances and present it to Council Finance Committee.
Definitions
Non-Spendable Fund Balances – Applicable to governmental funds. Permanent endowments
or assets in a non-liquid form such as long term inter-agency loans.
Restricted Fund Balances – Applicable to governmental funds. Involve a third party such as
State Legislative requirements, voter ballot language, or the Contractual Agreements
with parties external to the City.
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Committed Fund Balances – Applicable to governmental funds. Involve a of formal action by
the City Council. An example is traffic calming revenues are required to be spent on
traffic calming activities. Any unspent monies at end of year are classified as Committed
to Traffic Calming in the General Fund.
Assigned Fund Balances – Are applicable to governmental funds. Assignments can be made by
senior management. They represent the intent to use the monies for a specific purpose.
An example of this it this the one time Harmony Road monies transferred by the State to
the City. Although required to be used on Harmony Road, staff intends to use the
monies only on Harmony Road improvements. These monies are considered when
measuring compliance with minimum fund balances.
Unassigned Fund Balances – Are applicable only to the General Fund. These monies are
considered when measuring compliance with minimum fund balances.
Working Capital – Is a term applicable to Internal Service and Enterprise Funds. It is the
difference between Current Assets and Current Liabilities. Not all Working Capital is
available. Available Working Capital does not include Restrictions for debt, Art in Public
Places, approved capital appropriations, and other restrictions.
Liquidity – Assets range from cash to land. The more easily and quickly an asset can be
converted to cash determines its relative liquidity.
Reserves – A legacy term that previously referred to fund balances, or fund balances set aside
for a specific purpose. It is no longer used on financial statements.
Fund Balance – Is a term applicable to Governmental Funds. Fund balance or Equity is the
difference between Assets and Liabilities. Since governmental funds do not have long
term assets and long term debt on their balance sheet, fund balance is similar and
approximates working capital in the private sector and enterprise funds.
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ATTACHMENT 3
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RESOLUTION 2014-058
OF THE COUNCIL OF THE CITY OF FORT COLLINS
ADOPTING AMENDMENTS TO THE FINANCIAL MANAGEMENT POLICIES
WHEREAS, City Council has adopted Financial Management Policies for the City
pursuant to Resolution 1994-174 (the “Policies”); and
WHEREAS, Resolution 1994-174 provides that City Council may adopt amendments to
the Policies, which the Council has done several times over the years; and
WHEREAS, the City Financial Officer and City Manager have recommended new
amendments to the Policies related to the City’s budget and fund balance minimums; and
WHEREAS, the City is committed to sound and efficient financial planning and
management consistent with the best practices as established by the Government Finance
Officers Association (“GFOA”); and
WHEREAS, the amendments to the Policies related to budget are set out in the “Budget
Policy” attached hereto and incorporated by reference as Exhibit “A” (“Amended Budget
Policy”); and
WHEREAS, the amendments to the Policies concerning “Fund Balance Minimums” are
attached hereto as Exhibit “B” and incorporated by reference (“Amended Fund Balance
Minimums”); and
WHEREAS, the Amended Budget Policy and the Amended Fund Balance Minimums
(jointly, “Amendments”) establish guidelines for sound and efficient financial planning and
management, reflect the City’s current legal requirements that apply to the City’s financial
activities, and constitute GFOA best practices; and
WHEREAS, the City Council wishes to adopt these Amendments in pursuit of its
objective of sound and efficient financial planning and management.
NOW, THEREFORE, BE IT RESOLVED BY THE COUNCIL OF THE CITY OF
FORT COLLINS, as follows:
Section 1. That the City Council hereby approves and adopts the Amended Budget
Policy and the Amended Fund Balance Minimums.
Section 2. That the Amendments shall be included as part of the Policies, and the
Policies, as previously amended and as amended herein, shall hereafter remain in effect until the
same are amended or repealed by subsequent action of the City Council.
- 2 -
Passed and adopted at a regular meeting of the Council of the City of Fort Collins this
15th day of July, A.D. 2014.
_________________________________
Mayor Pro Tem
ATTEST:
_____________________________
City Clerk
Financial Management Policy
Budget Policy
Issue Date:
Version: 2
Issued by: Lawrence
Pollack
Financial Policy – Budget
1
1.1 Overview
The Fort Collins City Charter establishes time limits and the essential content of the City
Manager’s proposed budget, however the budget preparation process is not prescribed, but
is developed by the City Manager with input from the City Council.
The fiscal year of the City is the calendar year. The City may adopt budgets for a budget
term of one fiscal year or more. After the Charter amendment in 1997 allowing the budget
term to be more than one fiscal year, the Council has adopted two-year budgets that
correspond with the election cycle.
The budget is a 2-year plan by which the City Council sets the financial and operational
priorities for the City - through the budget, services are implemented. The budget along
with the annual appropriation ordinance provides the basis for the control of expenditures.
The State Constitution and the City Charter provide the basic legal requirements and time
lines for the process. Council goals, ordinances and resolutions provide additional direction
and respond to the needs of the community.
1.2 Principals for Budget Planning
The City provides a wide variety of services to the residents of the community. It is in the
power of the City Council to adopt a budget and manage the available resources to best
meet the service needs for the overall good of the community (City Charter Article II,
Section 5 (c)).
Objective:
Governments allocate scarce resources to programs and services through the budget process. As a
result, it is one of the most important activities undertaken by governments. The purpose of this
policy is to establish parameters and provide guidance governing the budget for the City of Fort
Collins (City).
Applicability:
This budget policy applies to all funds and Service Areas of the City.
Authorized by:
City Council
EXHIBIT A
Financial Policy – Budget
2
In 2005 the City Council, on recommendation from the City manager, endorsed the
Budgeting for Outcomes budget process. At a high level, the budgeting for outcomes
methodology can be summarized as:
1. Determine how much money is available. The budget should be built on expected
revenues. This would include base revenues, any new revenue sources, and the
potential use of fund balance.
2. Prioritize results. The results or outcomes that matter most to citizens should be
defined. Elected leaders should determine what programs are most important to their
constituents.
3. Allocate resources among high priority results. The allocations should be made in a
fair and objective manner.
4. Conduct analysis to determine what strategies, programs, and activities will best
achieve desired results.
5. Budget available dollars to the most significant programs and activities. The
objective is to maximize the benefit of the available resources.
6. Set measures of annual progress, monitor, and close the feedback loop. These
measures should spell out the expected results and outcomes and how they will be
measured.
7. Check what actually happened. This involves using performance measures to
compare actual versus budgeted results.
8. Communicate performance results. Internal and external stakeholders should be
informed of the results in an understandable format.
At that time, the City Council also identified the key outcomes it believed should be used in
the new budget process. In addition, the 2005-2007 Policy Agenda sets forth the
implementation and continued improvement of the collaborative budget process, aligning
spending with desired outcomes.
In 2012, the City Council passed resolution 2012-076 promoting improved results through
performance measures and data-driven decision making. In reference to the budget, an
outcome-based performance measurement system will help ensure that available resources
are used to achieve excellent results at low cost to the taxpayers and will enhance the
citizen’s understanding of the City and the services it provides.
1.3 Scope
A. Comprehensiveness
The proposed budget shall provide a complete financial plan for each fund of the city and
shall include appropriate financial statements for each type of fund showing comparative
figures for the last completed fiscal year, comparative figures for the current year, and the
City Manager's recommendations for the ensuing budget term (City Charter Article V, Part
1, Section 2). In addition, the City of Fort Collins Budget Document may include items such
Financial Policy – Budget
3
as:
1) Statement of organization-wide strategic goals.
2) A description of the budget process, including a timeline.
3) A Glossary of Budget Terms.
4) A City of Fort Collins organizational chart.
5) Letter from the City Manager.
6) Budget Overview which may include:
a) The economic outlook;
b) Revenue assumptions;
c) Summary of use of reserves;
d) Budget priorities and highlights.
7) Copy of signed appropriation ordinance and a schedule of 2nd year proposed
appropriations.
8) Revenue, expense and changes in fund balance summaries.
9) Summary of employee full-time equivalent staffing by service area and department.
10) A section for each of the key strategic Outcomes, which may include:
a) Information indicating how the Offers in the Outcome are funded, by fund;
b) Major key purchases;
c) Major enhancements purchased;
d) Detailed listing of all offers funded and unfunded;
e) Strategic objectives of the Outcome.
11) Fund Statements.
12) Overview of debt position.
13) Current Capital Improvement Plan.
14) Summary of changes to user fees.
15) Summary of property tax mill levy and assessments.
The annual appropriation ordinance shall also include the levy in mills, as fixed by the
Council, upon each dollar of the assessed valuation of all taxable property within the
city, such levy representing the amount of taxes for city purposes necessary to provide,
during the ensuing fiscal year, for all properly authorized expenditures to be incurred
by the city, including interest and principal of general obligation bonds. If the Council
fails in any year to make said tax levy as above provided, then the rate last fixed shall
be the levy fixed for the ensuing fiscal year and the Financial Officer shall so certify
(City Charter Article V, Part 1, section 5).
B. Budget Form
The City of Fort Collins uses the Budgeting For Outcomes model to create the City budget. A
new budget is designed from the ground up based on the results desired in each of the
Outcomes defined by the City. The BFO budget-building process includes four steps:
1) Determine how much revenue will be available (the price people pay);
Financial Policy – Budget
4
2) Determine the priorities of the City and its citizens and the results to be achieved;
3) Allocate the revenue needed to achieve the desired results;
4) Determine which budget items will best produce the desired results at the price
allocated.
C. Basis of Budgeting
All budgetary procedures conform to state regulations and to generally accepted accounting
principles. The basis or principle used for budgeting is the same as that used for
accounting, with a few exceptions, and varies according to the fund type.
Governmental Funds use the modified-accrual basis of accounting. This means that revenues
are recognized when they are earned, measurable and available. Expenditures are
recognized in the period that liabilities are due and payable. The budgetary basis is the
same and is used in the General Fund, Special Revenue and Debt Service Funds, and Capital
Project Funds.
Proprietary and Fiduciary Funds use the full accrual basis of accounting. Revenues are
recognized when they are earned and expenses are recognized when liabilities are incurred.
However, the budgetary basis in these funds is primarily based on the modified-accrual
approach. Instead of authorizing budget for depreciation of capital assets, the budget
measures and appropriates cash outflows for capital acquisition and construction, which is
a modified-accrual approach. In full accrual based accounting debt proceeds are recorded as
liabilities rather than a revenue (funding source). For these reasons a reconciliation and
adjustment is made on these fund statements to show the difference between the budgetary
basis and the accounting basis.
D. Budget Calendar
The fiscal and accounting year shall be the same as the calendar year. "Budget term" shall
mean the fiscal year(s) for which any budget is adopted and in which it is to be
administered. Council shall set by ordinance the term for which it shall adopt budgets in
accordance with this Article (City Charter Article V, Part 1, section 1).
On or before the first Monday in September, commencing in 2010 and every other year
thereafter, the City Manager shall file with the City Clerk a proposed budget for the City for
the ensuing two-year term (City Charter Article V, Part 1, section 2). The Council shall,
within ten (10) days after the filing of said proposed budget with the City Clerk, set a time
certain for public hearing and cause notice of such public hearing to be given by publication.
At the hearing, all persons may appear and comment on any or all items and estimates in
the proposed budget. Upon completion of the public hearing the Council may revise the
budget estimates (City Charter Article V, Part 1, section 3).
Financial Policy – Budget
5
After said public hearing and before the last day of November preceding the budget term,
the Council shall adopt the budget for the ensuing term. The adoption of the budget shall be
by ordinance. Before the last day of November of each fiscal year, the Council shall
appropriate such sums of money as it deems necessary to defray all expenditures of the city
during the ensuing fiscal year. The appropriation of funds shall be accomplished by passage
of the annual appropriation ordinance. Such appropriation of funds shall be based upon the
budget as approved by the Council but need not be itemized further than by fund with the
exception of capital projects and federal or state grants which shall be summarized by
individual project or grant (City Charter Article V, Part 1, section 4).
Appropriations for each year of the two-year budget will be approved by the City Council
annually. Appropriations for the 2nd year of the biannual budget are adopted during the
budget revision process. That process allows for adjustments to the originally adopted
biennial budget that address new Council priorities or support changing needs based on
economic conditions. The City Manager may present any budget adjustment
recommendations to the City Council in Work Sessions and then Council may amend the
budget and, as required by the State and City Charter, appropriate or authorize
expenditures for the coming fiscal year.
1.4 Roles and Responsibilities
All powers of the city and the determination of all matters of policy shall be vested in the
Council except as otherwise provided by the Charter. Without limitation of the foregoing,
the Council shall have power to adopt the budget of the city.
The City Manager shall be responsible to the Council for the proper administration of all
affairs of the City and to that end shall have power and be required to prepare the budget
and submit it to the Council and be responsible for its administration after adoption.
The City Manager and Chief Financial Officer, along with the other executive directors,
known as the Budget Lead Team (BLT), develop the guidelines, consistent with the policies,
to be used for budget preparation. During the development of the budget, various
department and division representatives may be called upon to provide their expertise.
From April through June, City staff from all departments and divisions prepares the Offers
(budget requests) for inclusion in the budget.
1.5 Budgeting Control System
No appropriation shall be made by the Council which exceeds the revenues, reserves or
other funds anticipated or available at the time of the appropriation, except for emergency
expenses incurred by reason of a casualty, accident or unforeseen contingency arising after
the passage of the annual appropriation ordinance (City Charter Article V, Part I, Section 8
Financial Policy – Budget
6
(a)).
Control of expenditures is exercised at the fund level. Fund managers are responsible for all
expenditures made against appropriations within their fund and can allocate available
resources within the fund.
All appropriations unexpended or unencumbered at the end of the fiscal year shall lapse to
the applicable general or special fund, except for:
appropriations for capital projects which shall not lapse until the completion of the
capital project; and
federal or state grants which shall not lapse until the expiration of the federal or state
grant (City Charter Article V, Part I, Section 11).
A. Budget Transfers
Between Funds or Capital Projects
During the fiscal year, the Council may, by ordinance, upon the recommendation of the City
Manager, transfer any unexpended and unencumbered appropriated amount or portion
thereof from one fund or capital project account to another fund or capital project account
provided that:
1) the purpose for which the transferred funds are to be expended remains unchanged;
2) the purpose for which the funds were initially appropriated no longer exists; or
3) the proposed transfer is from a fund or capital project account in which the amount
appropriated exceeds the amount needed to accomplish the purpose specified in the
appropriation ordinance (City Charter Article V, Part I, Section 10 (b)).
Within a Fund
Budget control is maintained at the departmental level. The Chief Financial Officer Manager
has the authority to approve departmental expenses greater than budget so long as
expenses are less than budget within a fund. In no case may the total expenditures of a
particular fund exceed that which is appropriated by the City Council (City Charter Article V,
Part I, Section 10 (a)).
B. Applicable Amendments to the Budget
Budget Increases
There generally are four opportunities during the fiscal year for supplemental additions to
the current year annual appropriation approved by Council:
1) The first is through the encumbrance carry-forward process whereby approved
purchase orders that cannot be executed prior to the end of the fiscal year will have
available budget carried forward into the new year.
Financial Policy – Budget
7
2) The second is usually adopted in March/April to re-appropriate funds from the previous
year’s ending balance for projects or obligations that were approved but not completed
during that year.
3) The third opportunity in the 2nd half of the year is used to fine-tune (clean-up) the
current fiscal year for previously unforeseen events. In addition, if revenue is received
during the fiscal year from a source that was not anticipated at the time of budget
adoption or appropriation for the fiscal year, such as grants or implementation of a new
fee, Council may appropriate that unanticipated revenue for expenditure when received
anytime during the year.
4) Lastly, the Council, upon recommendation of the City Manager, may make supplemental
appropriations by ordinance at any time during the fiscal year; provided, however, that
the total amount of such supplemental appropriations, in combination with all previous
appropriations for that fiscal year, shall not exceed the then current estimate of actual
and anticipated revenues to be received by the city during the fiscal year. This provision
shall not prevent the Council from appropriating by ordinance at any time during the
fiscal year such funds for expenditure as may be available from reserves accumulated in
prior years, notwithstanding that such reserves were not previously appropriated (City
Charter Article V, Part I, Section 9).
Budget Decreases/Frozen Appropriations
The budget may be decreased below adopted appropriations during the fiscal year due to
changes in service demand, changes in economic conditions, and/or changes in Council
goals. Each service area is responsible for developing a plan to reduce appropriations,
which will be ready for implementation should the need arise. If the City Manager directs
budget reductions, Council will be informed and the appropriations will be “set aside”
through administrative action. While the appropriation amount is not changed,
expenditures shall not exceed the reduced amount recommended by the City Manager.
1.6 Balanced Budget Definition
All funds are required to balance. As such, total anticipated revenues must equal the sum of
budgeted expenditures for each fund. Revenues are derived from two sources: current
revenue charges and unallocated reserves carried forward from prior years.
Financial Management Policy 5
Fund Balance Minimums
Issue Date: April 15,
2008
Version: 2
Issued by: City Council
Financial Policy 5 – Reserve Policy
1
5.1 Governmental Funds and Fund Balances
To set minimum fund balances so as to mitigate risks, maintain good standing with
rating agencies, and ensure cash is available when revenue is unavailable. The policy is
sets minimum fund balances, not targets or maximum balances. Each fund should be
evaluated by staff to determine the appropriateness of maintaining fund balances above
the minimums set in this policy. Contingencies for severe weather, prolonged drought,
and anticipated capital spending should be considered independently from this policy.
The Equity on balance sheet of a governmental fund is called Fund Balance. The current
classifications of Fund Balance in governmental funds are primarily based on the origin
of the constraints. The following categories are in decreasing order of constraints.
Non-Spendable Permanent endowments or assets in a non-liquid form
Restricted Involve a third party: State Legislation or
Contractual Agreements
Committed Set by formal action of the City Council
Assigned By staff, and/or residual balances in a Special Revenue Fund
Objective:
To set minimum fund balances as to mitigate risk, maintain good standing with rating agencies, and ensure
cash is available when revenue is unavailable. The policy sets minimum fund balances, not targets or
maximum balances. Each fund should be evaluated by staff to determine the appropriateness of
maintaining fund balances above the minimums set in this policy. Contingencies for severe weather,
prolonged drought, and anticipated capital spending should be considered independently from this policy.
Applicability:
Funds—This policy applies to all City funds. It does not apply to URA, DDA, PFA and Library.
Authorized by:
City Council Resolution 1994-174 and 2008-038.
EXHIBIT B
Financial Policy 5 – Reserve Policy
2
Unassigned Remaining balances in the General Fund
Minimums outlined in section 5.2 relate only to Assigned and Unassigned balances.
5.2 Proprietary Fund and Working Capital
Internal Service Funds and Enterprise Funds are accounted for nearly identical to the
private sector. The balance sheets include long term assets and long term liabilities.
The resulting Equity section on their balance sheet, called Net Position, is not a good
measure of spendable financial resources. To get to spendable financial resources, a
common calculation is to take Current Assets and subtract Current Liabilities, with the
net result called Working Capital.
To further refine, for purposes of this policy, certain required restrictions are further
subtracted and result in Available Working Capital. Some examples of required
restrictions are unspent monies for Art in Public Places, Water Rights, and existing
appropriations for capital projects. The minimums outlined in section 5.5 relate to
Available Working Capital.
5.3 Minimum Balances
The following Minimum Balances refers to Assigned and Unassigned Fund Balances in
governmental funds and Available Working Capital in the Internal Service Funds and
Enterprise Funds.
A. General Fund
60 Day Liquidity Goal - The Commitment for Contingency should be at least 60 days
(17%) of the subsequent year’s originally adopted budgeted expenditures and transfers
out. The calculation for the minimum level shall exclude expenditures and transfers out
for large and unusual one-time items.
Important note – the 60 Day Liquidity Goal is in addition to the Restricted Balance
required by Article X, Section 20 of the State Constitution. This reserve must equal 3%
of non-exempt revenue and can only be used for declared emergencies. Fiscal
emergencies are specifically excluded by the State Constitution as qualifying use of this
reserve.
B. Special Revenue Funds
Financial Policy 5 – Reserve Policy
3
No minimum balance is required.
C. Debt Service Funds
No minimum balance is required.
D. Capital Project Funds
No minimum balance is required.
E. Enterprise Funds
Enterprise funds focus on working capital rather than fund balance.
Enterprise Funds shall maintain a minimum Available Working Capital equal to 25% of
Operating Expenses, less Depreciation. In the case of L&P, operating expenses will
include purchased renewable energy for resale but will not include regular purchased
power for resale (i.e. Platte River Power Authority).
Important note – The Water Fund holds a balance for Restricted Water Rights. The
balance equals the amount of cash in-lieu-of water rights payments and raw water
surcharges less any expenses for acquiring water rights and water storage;
The enterprises funds should also be accumulating available working capital above
these minimums for the purposes of funding future capital projects.
F. Internal Service Funds
Each fund is a unique operation and will maintain a minimum Available Working Capital
as follows:
601 Equipment Fund 8.3% Of annual operating expenses, excluding
depreciation
602 Self-Insurance Fund 25.0% Of annual operating expenses
603 Data & Communications
Fund
0.0% N/A
604 Benefits Fund 30.0% Of annual medical and dental expenses
605 Utility Customer Service
Fund
0.0% N/A
Financial Policy 5 – Reserve Policy
4
5.4 Below Minimum
When circumstances result in balances below the minimum, staff should develop a plan
to restore minimums fund balances and present it to Council Finance Committee.
Financial Policy 5 – Reserve Policy
5
Definitions
Non Spendable Fund Balances: Applicable to governmental funds. Permanent endowments or assets in a
non-liquid form such as long term inter-agency loans.
Restricted Fund Balances: Applicable to governmental funds. Involve a third party such as State
Legislative requirements, voter ballot language, or the Contractual Agreements with parties
external to the City.
Committed Fund Balances: Applicable to governmental funds. Involve a of formal action by the City
Council. An example is traffic calming revenues are required to be spent on traffic calming
activities. Any unspent monies at end of year are classified as Committed to Traffic Calming in the
General Fund.
Assigned Fund Balances: Are applicable to governmental funds. Assignments can be made by senior
management. They represent the intent to use the monies for a specific purpose. An example of this
it this the one time Harmony Road monies transferred by the State to the City. Although required to
be used on Harmony Road, staff intends to use the monies only on Harmony Road improvements.
These monies are considered when measuring compliance with minimum fund balances.
Unassigned Fund Balances: Are applicable only to the General Fund. These monies are considered when
measuring compliance with minimum fund balances.
Working Capital: Is a term applicable to Internal Service and Enterprise Funds. It is the difference
between Current Assets and Current Liabilities. Not all Working Capital is available. Available
Working Capital does not include Restrictions for debt, Art in Public Places, approved capital
appropriations, and other restrictions.
Liquidity: Assets range from cash to land. The more easily and quickly an asset can be converted to cash
determines its relative liquidity.
Reserves: A legacy term that previously referred to fund balances, or fund balances set aside for a specific
purpose. It is no longer used on financial statements.
Fund Balance: Is a term applicable to Governmental Funds. Fund balance or Equity is the difference
between Assets and Liabilities. Since governmental funds do not have long term assets and long
term debt on their balance sheet, fund balance is similar and approximates working capital in the
private sector and enterprise funds.
Financial Policy 5 – Reserve Policy
6
Getting Help
Please contact the Controller with any questions at 970.221.6772.
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