HomeMy WebLinkAboutFIN-07-058 - 2008 Budget Process & 3-Year Financial Plan
Report To:
Councillor B. Vrbanovic, Chair, and Members of the Finance
and Corporate Services Committee
Date of Meeting:
May 28, 2007
Submitted By:
Pauline Houston, General Manager of Financial Services &
City Treasurer
Dan Chapman, Director of Financial Planning & Reporting
Prepared By:
Ward(s) Involved:
Date of Report:
Report No.:
Subject:
All
May 10, 2007
FIN-07-058
2008 BUDGET PROCESS AND 3-YEAR FINANCIAL PLAN
RECOMMENDATION:
THAT staff be directed to convene representative focus group meetings between June and
August 2007 to identify/clarify potential priority areas for service level or program reductions
over the next three years;
THAT staff be directed to bring forward three-year operating budget projections for strategic
initiatives and service level or program reductions in September of 2007 to align resources with
community priorities (as represented in the City's seven strategic themes);
THAT staff be directed to submit three-year operating budget projections in conjunction with
2008-2010 departmental business plans in early 2008;
THAT the 2008 budget meeting timetable outlined in staff report FIN-07-058 be approved in
principle, subject to finalization of the 2008 meeting schedule;
THAT the following initial guidelines be issued to staff as the basis for 2008 budget preparation:
Increase in fees and charges revenue
Impact of capital facilities and growth
Base inflation
EDIF
Provision for strategic initiatives
6.00%
3.55% of levy
3.00% of levy
1.25% of levy;
0.50% of levy; and further
THAT staff be directed to monitor and report back on the potential 2008 budget impacts of
assessment growth, the 2007 operating surplus or deficit, the Parking Enterprise business case,
and the settlement of the KPFFA collective agreement.
1
BACKGROUND:
As part of the 2007 budget process, staff commenced the development of a strategic financial
plan for the City of Kitchener to align resources with community priorities over a three-year time
horizon. The 2008 budget process will build on work already completed and culminate in the
presentation of three-year business plans for all City departments which will align departmental
initiatives, budgets and performance measures with the City's seven strategic themes.
This report has been submitted to obtain Council direction with respect to the key elements of
the 2008 budget plan, including the general approach, timetable and financial principles.
Council's direction will form the basis of the budget call issued to all City departments and local
boards in June.
REPORT:
Upon approving "A Plan for a Healthy Kitchener (2007 - 2027)" in the summer of 2006, Council
directed staff to prepare an implementation plan in 2007. Pending completion of the
implementation plan, the 2007 budget process represented an opportunity to establish the
foundation for a three-year financial plan through the following activities:
. Operating budget "add" proposals were aligned with the City's strategic themes;
. An extensive consultation focused on immediate community priorities as well as high
level financial principles; and
. Staff prepared three-year operating budget projections to facilitate internal review of
budget submissions.
Staff intends to move forward with the development of a three-year financial plan (2008-2010)
through the business plan process proposed to Council at the strategic session on April 30,
2007. This approach is consistent with best practices in municipal budgeting, which emphasize
the link between strategic planning, long-range financial planning, budgeting, performance
measurement and evaluation. Known as budgeting for results and outcomes, this approach
links resources to objectives early in the budget process, so that the focus is on outcomes
rather than existing programs.1 The main features of the City's process include:
. June to September 2007 - Budget preparation - Upon receiving budget direction, staff
will proceed to develop budget estimates and multi-year proposals for program
expansion or reduction in support of the City's strategic themes;
. September 2007 - Business plan overview - Council will have an opportunity early in
the budget process to prioritize initiatives in support of the City's strategic themes and
will also consider the potential for service level or program reductions based on staff and
community input; and
. October to January 2008 - Compilation of detailed three-year business plans - City
departments will compile business plans which will include initiatives, budget summaries
and performance measures. These documents will be used to plan the work of
departments and will form the basis of future status updates and budget presentations
over the remaining three-year period to the end of Council's mandate.
1 GFOA Recommended Practice - Budgeting for Results and Outcomes, found at:
http://www. gfoa. org/services/rp/docu ments/budgeti ngforres u Its. pdf
2
Staff is not seeking direction with respect to multi-year operating budget targets at this time as it
would be appropriate for Council to consider this issue after strategic initiatives and reductions
are presented and additional information is provided as part of the business plan documents.
The following table provides some examples of potential priority areas under which initiatives
might be implemented over the 2008-2010 time period. This list is provided for illustrative
purposes only. The business plan overview in September will provide a more thorough analysis
to facilitate prioritization by Council.
Quality of Life
Operating costs to support Kingsdale expansion, McLennan park
development, library redevelopment and parks/trails master plan
Leadership and
Community Engagement
Community investment strategy implementation
Diversity
Implementation of community access, equity and inclusion
programs
Downtown
Establishment of parking enterprise; Implementation of special
events strategic plan
Development
Appropriate staffing level for development approvals and policy
planning
Environment
Improvements in sustainability - becoming a "green" City;
Transportation demand management
Efficient and effective
government
Implementation of people plan; Comprehensive and coordinated
online presence (e-government, customer service, economic
development, communications, public engagement); Customer
service contact centre; Consolidated maintenance facility
New initiatives with incremental resource requirements could be funded either through a budget
allocation for new initiatives or through the reprioritization of existing resources.
Public EnQaQement
In early 2007, the City reached out to over 60,000 households through "Your Kitchener" and the
City's website with a Budget in Brief document to raise awareness with respect to the 2007
budget and encourage individuals to provide feedback. The City also held two public meetings,
a meeting with Compass Kitchener, and staff attended the Kitchener Market to discuss the
Budget in Brief with members of the public.
In report FIN-07-011 (February 5, 2007) staff brought forward a number of observations based
on the City's experience in this consultation and developed recommendations to inform the
planning for future consultations. These recommendations focused on the use of a mixture of
engagement methods. In addition, staff recommended that consultations occur earlier in the
budget process, ideally at the direction-setting stage, and that the City consider the use of tools
3
such as an ongoing citizen surveyor focus groups to assure a response that is representative of
the Kitchener population.
Staff recommends that the City convene focus groups obtain representative feedback on areas
for potential service level or program reduction. This work will build upon the findings of the
2005 Environics survey and the 2007 budget consultation. It is anticipated that a consultant can
be retained to assemble and facilitate representative focus groups over the summer months and
that a report can be tabled with Council on September 24, 2007 for discussion.
From a budget expansion perspective, the 2008 budget and three-year plan will focus on the
City's seven strategic themes, which are already supported by extensive and representative
consultation as well as the implementation plan for A Plan for a Healthy Kitchener.
The proposed two-phase approach to presenting the 2008 budget (the identification of initiatives
and reductions in support of strategic directions, followed by the detailed budget) will maintain a
focus on aligning resources with Council and community priorities over the next three years.
In order to ensure that the general public remains informed and involved in the budget process,
staff will develop a communications plan which will include establishing a budget web page and
advertising formal public meetings for consideration of fire fees, water and sewer rates, and the
2008 budget prior to final passage. In addition, staff recommends that a special budget input
session be scheduled between the business plan overview in September and budget
deliberations commencing in November, to provide the community with an opportunity to
provide input into the budget process.
Timelines
The following Finance and Corporate Services Committee meeting dates are proposed for the
2008 budget process, subject to finalization of the 2008 meeting schedule later this year:
Business Plan Overview
September 24, 2007
(Regular FCSC)
October 15, 2007
(Regular FCSC)
November 5, 2007
(Regular FCSC)
November 5, 2007
(Regular FCSC)
December 10, 2007
(Council Day)
January 14, 2008
(Council Day)
January 28, 2008
(Council Day)
Public Input Session
Fees and Charges
Referral of Projects to Capital Forecast
Capital Budget and Forecast
Operating Budget
Final Budget Day
Consider scheduling FCSC
between 7 and 9 p.m.
Permits implementation of
new rates on January 1, 2008
Permits inclusion of projects
before issuing package
Includes utility rates
implemented March 1, 2008
No provision has been made for a "Grants Day" as part of the 2008 budget process, consistent
with the recommendations of report CSD-07-044 (Interim Options for 2008 Annual Operating
and Minor Sports Grants - Community Investment Strategy).
4
Financial Parameters
A number of factors influence the annual net budget and tax rate increase, including:
. Impact of new capital facilities on the operating budget;
. Base inflation;
. Legislated changes;
. Costs to service growth;
. Initiatives in support of the City's strategic directions;
. Contribution to the Economic Development Investment Fund (EDIF); and
. Other items, including significant non-recurring adjustments.
In order to provide an initial estimate of the likely impact of these factors in 2008 and beyond, a
ten-year tax rate impact projection is attached as Appendix "A". It shows that substantial
pressure will be placed on the budget over the next several years as the City realizes significant
capital expansion as well as the impact of EDIF and other initiatives. For 2008, the current
projection shows a levy increase of 5.47% before EDIF, and 6.72% including EDIF. This is the
highest annual increase projected over the next ten years, and is due in large part due to the
increased operating costs associated with the construction of Fire Station #7.
Staff is seeking Council's preliminary direction at this time in respect of the three factors which
have a significant impact on the initial budget direction for City departments and local boards:
Operating budget provisions related to capital facilities and growth - Operating budget
allocations are being sought for increased operating costs associated with the construction of
Fire Station #7 and the new Twin Pad facility, as well as the implementation of new financial and
infrastructure management systems (licensing and maintenance costs). In addition, provision
is being sought for a growth-related increase in the capital out of current contribution consistent
with Council's funding policy. Finally, the annual provision for operations to service growth is
included with an additional $150,000 that was deferred from the 2007 operating budget. This
provision will fully fund all FTE's in Operations. Additional detail has been provided for the three
new operating provisions for capital projects in Appendix "B"
Base inflation - The tax rate projection includes a provision for base inflation at 3% per year
across the ten-year period. The difference between this rate and the Bank of Canada's long-
term total inflation target of 2.0% is primarily attributed to differences in the City's "basket of
goods". A large portion of the City budget is dedicated to wage, energy, construction and
transportation costs, which have traditionally increased at a rate faster than the other
components of the household CPl. In order to maintain the base inflation at as Iowa level as
possible, no increase has been allocated to administrative, supply, contract service, rental,
promotional or repair cost objects for the second consecutive year. This will necessitate
efficiency gains in order to offset any associated cost increases. Appendix "C" shows how the
City's anticipated rate of inflation was calculated for 2008. The 2007 budget is a reasonable
starting point for the calculation given that 2005 departmental spending was within 0.1 % of
budget and 2006 departmental spending was within 0.5% of budget (excluding the savings in
winter control associated with the unseasonably mild winter).
Strategic initiatives - A notional provision of 0.5% of the levy (approximately $0.4 million) has
been set aside in the operating budget projection for initiatives in support of the City's seven
strategic themes. Staff will bring forward specific proposals related to initiatives funded out of
5
this allocation as part of the business plan overview in September of this year. Staff is seeking
Council's direction with respect to the general level of notional allocation for strategic initiatives
to assist staff in prioritization.
While the ten-year projection is a realistic depiction of known items at this point in time, a
number of options have been identified in Appendix "D" should Council wish to give direction for
an initial levy target lower than that currently projected. Reductions of 0.60% are proposed. If
Council were to support these amounts, the projected levy increase would be reduced to 6.12%.
The potential for further reductions through adjustments to assessment growth, tax stabilization
transfers, etc. could be addressed as more information becomes available later in 2007. These
issues do not necessarily need to be addressed at this time as they do not impact the terms of
the budget call.
Council should be aware that no provision currently exists for the costs of a fire settlement
beyond normal contract settlement provisions provided for in base increases. If the contract is
settled for an amount greater than that currently provided in the projected base increase, there
would be an additional levy requirement.
Staff is not seeking direction with respect to multi-year operating budget targets at this time as it
would be appropriate for Council to consider this issue after strategic initiatives and reductions
are presented and additional information is provided as part of the business plan documents.
FINANCIAL IMPLICATIONS:
The cost associated with assembling and facilitating representative focus groups to identify
potential areas for program and/or service level reduction is anticipated to be between $10,000
and $20,000. This will be funded through the City's corporate plan account which exists to
support initiatives such as the 2007 consultations on finances and growth management.
ATTACHMENTS:
Appendix A - Ten-Year Tax Rate Impact Projection
Appendix B - Basis of Calculation for New 2008 Operating Budget Impacts of Capital Projects
Appendix C - Base Inflation Projection
Appendix D - Potential Budget Reduction Options
Appendix E - Tax Stabilization Reserve Fund Projection
Pauline Houston, CA
General Manager of Financial
Services & City Treasurer
Dan Chapman, CA
Director of Financial Planning
& Reporting
6
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