SR - - FIRST STUDY SESSION PROPOSED BUDGET FY 2017-18 AGENDA ITEM
Z
9�•. o a Date: March 28, 2017
eouNiy
TO: Honorable Mayor and Members Reviewed/Verified
of the City Council City Manager
Finance Directo
FROM: Rick Otto To Be Presented By:
City Manager Will Kolbow
1. SUBJECT
First Study Session for the Proposed Fiscal Year 2017 -18 Budget
2. SUMMARY
This is the first study session in support of the preparation of the FY 2017 -18 Budget (FY 18).
This study session is intended to provide a status of the current year budget, an initial analysis of
the projected General Fund revenues and expenditures for FY 18, the proposed Annual
Departmental Work Plans for FY 18, and the draft of the Five -Year Capital Improvement Plan for
the period of FY 17 -18 through FY 21 -22.
3. RECOMMENDATION
Receive and file the report and provide direction to staff.
4. FISCAL IMPACT
Fiscal impact will be determined with final budget adoption.
5. STRATEGIC PLAN GOAL(s)
2. Be a fiscally healthy community: a) Expend fiscal resources responsibly; b) Analyze future
fiscal needs and potential revenue opportunities; and c) Provide appropriate reserves.
4. Provide outstanding public service: b) Provide facilities and services to meet customer
expectations.
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6. DISCUSSION and BACKGROUND
This is the first study session in support of the preparation of the City's FY 18 Budget. This study
session is intended to focus on the following items:
• Providing a status of the current year budget;
• Providing an initial analysis of the projected revenues and expenditures for FY 18;
• Presenting the proposed Annual Departmental Work Plans for FY 18, and;
• Presenting the draft Five -Year Capital Improvement Plan for the period of FY 17 -18
through FY 21 -22.
Introduction
This is an exciting time in Orange. In addition to our local economy remaining very strong and
the real estate market robust, the City is working on three high - profile projects that will be under
construction during the FY 18. The renovations at Yorba Park have already begun and by July of
this year we will be seeing the start of construction for the renovations at Shafer Park and the new
Metrolink Parking Structure. In total, the three projects reflect a $40.0 million reinvestment into
our community and provide enhanced amenities to our residents, businesses and visitors.
In spite of this upbeat outlook, unfortunately the City does face a significant fiscal challenge in FY
18 and beyond. While past fiscal challenges were the outcome of economic downturns that
resulted in declining revenues, this fiscal challenge is due to rising costs — specifically the City's
share of Ca1PERS costs. In FY 18, PERS costs will increase by $2.3 million to $21.2 million
which equates to over 2.0% of the General Fund budget. In the fiscal years beyond FY 18, PERS
costs continue to escalate dramatically with estimated $3.0 million increases in both FY 19 and
FY 20. I have great concern that General Fund revenues will not be able to keep pace to sustain
these increases.
The PERS issue is clearly the biggest obstacle facing every full- service city in the state. Already,
two smaller agencies have defaulted on their obligated PERS payments and I would not be
surprised if more follow in the coming years. This and past City Councils have been extremely
proactive in responding to the economic challenges that the City has faced. Throughout the years,
the City Council has taken decisive actions to manage our operating costs, while preserving service
levels. With the adoption of the FY 17 Budget, the City achieved a balanced budget for the fifth
year in a row. While this is a noteworthy achievement, it will be increasingly difficult to maintain
unless we have prudent spending practices. Therefore, the City must continue to find ways to
tighten its belt to avoid painful budget cuts in the future.
At this point in the budget process, staff is pleased to project a preliminary General Fund budget
for FY 18 that is balanced as well as a conservative spending plan that is responsive to the priorities
set by the City Council.
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Status of Current Year Budget (FY 17)
Review of General Fund Revenues for FY 17
As the economy continues to show improvement, positive signs are reflected in many of our
revenue receipts. Total General Fund revenues are projected to be $110.9 million (a 4.3%
increase). However, $4.9 million of that are from one -time revenue sources. Our largest General
Fund revenue source, Sales Tax, is expected to be $41.6 million, $1.7 million below the budget of
$43.3 million. As fuel prices continue to stay low, the related sales tax revenue has not met budget
expectations. However, we anticipate the decline in fuel sales will be partially offset by increases
in auto sales, building and construction, and in the business and industry sectors. Property Taxes
are projected to end the fiscal year at $26.0 million, a $134,000 increase over budget, due to more
property tax increment distributed from the County of Orange for the Successor Agency. Licenses
and fees are expected to reach $4.5 million, $179,000 (4.1 %) over budget, primarily a result of an
increase in building related permits (building, electrical, plumbing, etc.). Use of Money and
Property is anticipated to be $221,000 (18.5 %) above budget, the result of higher interest rates
generating more interest earnings. Revenue from Other Agencies and Fees for Services are
expected to be above budget as well. Finally, Miscellaneous Revenues are estimated to be $5.7
million, $4.9 million higher than the budget of $769,000. The majority of this increase is
contributed by receipts from the sale of surplus properties.
One transaction in particular is worth noting. At the December 2016 City Council meeting, the
City Council approved the sale of surplus property at 3101 West Chapman Avenue to Chapman
University. As a result, the City received $6.5 million one -time monies from the transaction. Of
that $6.5 million, $3 million was deposited to the Capital Projects Fund (Fund 500), and $3.5
million was deposited to the General Fund (100). It is anticipated that the $3.5 million that is
currently in the General Fund will be used as a loan to the Water Fund (600) for the design and
construction of a water well on the site. Staff is still working on the details of the loan to the Water
Fund. However, it is anticipated that the loan will be presented to the City Council for
consideration prior to the end of the fiscal year.
Review of General Fund Expenditures and Ending Fund Balance for FY 17
General Fund expenditures are tracking at less than budgeted amounts. As such, the fiscal year is
projected to end with expenditure savings of $3.7 million due to diligent managing costs by
departments, and salary savings from positions that are not filled. While we have maintained
approximately 42 frozen full -time positions during FY 17, we have been generally filling funded
positions when they become vacant. Nevertheless, we scrutinize every vacancy and only fill
positions necessary to maintain expected service levels and provide for critical succession
planning.
Overall, departments continue to do an excellent job of maintaining targets on expenditures, and
being creative in meeting the City's service delivery goals. With our adjusted budgeted
expenditures of $105.4 million, we expect to end the fiscal year with a surplus of $5.6 million in
revenues over expenditures mostly due to $4.5 million in sales of City -owned properties and mid-
year adjustments. The result is a General Fund ending balance of approximately $8.8 million.
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Initial Review of the Proposed Budget for FY 18
Estimated General Fund Revenues for FY 18
The economy continues in a slow and steady growth mode. Employment is forecasted to increase,
and wages are expected to grow gradually. According to most economists, the overall economic
outlook is positive. Locally, Orange County continues to experience economic
improvement. According to Chapman University, Orange County will see job growth, especially
in the services and construction sectors. Personal income is projected to increase, which leads to
more consumer spending. Our initial analysis suggests FY 18 General Fund revenues will be
$107.8 million. While this is a $3.1 million (2.8 %) decrease below our estimated revenue for FY
17, after you remove the one -time revenue from FY 17, the projected FY 18 is actually an increase
of 1.7 %.
The following are the most significant highlights of the General Fund revenue for FY 18:
• Sales tax revenue is projected to be $42.4 million, $800,000 (1.9 %) above the FY 17
estimate. Low gas prices continue to have a prolonged impact on sales tax receipts. On the
positive side, the recently rebranded Kia dealership, and new stores at the Outlets of Orange
are anticipated to bring in additional retail sales. Further, we expect strong performances
in auto sales, building and construction activity, and the business -to- business sector. We
also expect that revenue from fuel sales will begin to recover. We continue to closely
monitor retail sales in Orange, as well as the local economy in general, and anticipate to
have more refined sales tax revenue estimates for the April 25 Study Session.
• Property tax revenue is estimated to be $27.0 million, an increase of $979,000
(3.8 %). Property tax receipts are expected to grow as homes will be assessed with annual
increases in their property taxes. The Proposition 13 increase in assessed values remains
at 2% the maximum allowed by law. Further, there has been an uptick in commercial
property transactions throughout the City, which will result in positive reassessments.
• Property taxes, in lieu of motor vehicle license fees, are estimated to increase $485,000
(3.9 %) to $12.8 million as this is tied to property tax growth.
• Hotel /Transient Occupancy Tax receipts are projected at $5.4 million, 2.0% above the FY
17 estimate, based on current trends that point to an increase in travel and tourism.
A more detailed analysis of projected revenue will be provided at the next Study Session.
Estimated General Fund Expenditures for FY 18
Our initial estimate for General Fund expenditures is $107.6 million. This reflects a 1.3% increase
in expenditures over the original adopted FY 17 budget. As is the course in previous years, we
will continue to refine our estimates through the budget process.
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The following are the most significant issues impacting the General Fund expenditures for FY 18:
1. Status of PERS Retirement Costs: Managing our retirement costs continues to be a high
priority. Classic miscellaneous employees (those who were Ca1PERS members on or
before December 31, 2012) pay their full 8% contribution, while classic safety employees
pay their required 9 %. In FY 18, employees hired under the new California Public
Employees' Pension Reform Act (PEPRA) formulas will continue to pay 6% and 11%
contributions for miscellaneous and safety, respectively, while receiving a reduced level of
retirement benefits. The City's proportional share for normal costs related to PEPRA are
also lower. The City has 80 miscellaneous PEPRA members (22.3% of active
miscellaneous PERS members) and 60 safety PEPRA members (22.3% of active safety
PERS members). The employee rates for PEPRA members represent half of the normal
cost of the benefit. As such, the City' s PERS rates will be positively affected over time as
the number of PEPRA employees increase.
PERS Costs Paid by Employee and City — Past and Future
Employee City PERS Rates*
Fiscal Year Status Paid City Paid Misc. Safety
2013 -14 Actual $4,420,917 $13,185,239 20.1% 30.1%
2014 -15 Actual 4,639,068 15,218,147 22.6% 33.3%
2015 -16 Actual 4,723,785 16,975,110 24.9% 36.3%
2016 -17 Projected 4,835,000 18,924,135 26.7% 39.4%
2017 -18 Prelim Budget , 5,142,000 21,183,000 29.5% 43.2%
2018-19 Forecast 5,142,000 24,079,000 32.5% 46.3%
2019 -20 Forecast 5,142,000 27,292,000 35.9% 50.9%
* - For FY 18 and beyond, the PERS rate is an estimated effective rate, as CaIPERS now separates out the
normal cost (calculated as a percentage of payroll), and the unfunded liability contribution (expressed as a
fixed dollar amount).
While the City had been experiencing a steady increase in PERS rates over the last decade,
FY 15 was the first year of dramatic increases. It was in FY 15 when PERS began to
reassess how cities would pay their unfunded liability. With each new amortized gain or
loss, PERS has planned to ramp up the cost over a five -year period, hold the rate steady for
twenty years, then ramp down the rates over the last five years. The intent was to soften
the impact of large gains and losses since PERS decided to shift from valuing their assets
by an actuarial value to a market value. The actuarial value had a softening mechanism
built in to its values, whereas market values are tied to the actual value of their assets which
can fluctuate quite a bit from year to year. The FY 15 increase in PERS costs was also due
to the end of furloughs and new salary increases for most employee groups.
In FY 17, due to lower than anticipated rates of return on investments, the PERS Board
agreed to lower the discount rate from 7.5% to 7% over the next three years. This further
resulted in increased costs to member agencies.
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Finally, in FY 18, CalPERS again will be changing the way it collects contributions. The
normal cost, which is the cost of benefits currently being earned, will continue to be paid
as a percentage of payroll. The normal cost rates will be 10.495% and 18.173% for the
miscellaneous and safety plans, respectively. The unfunded liability contribution piece,
however, will be paid separately, either in a lump sum at the beginning of the fiscal year at
a reduced amount or as a monthly fixed amount. Staff intends to take advantage of the
savings by paying the lump sum in July 2017. Net of a savings of approximately $460,000,
the cost for the unfunded liability will be $12,548,878 (General Fund cost is $10,871,580).
These three determinations by PERS has resulted in a net increase in PERS costs for FY
18 of $2.3 million ($1.9 million for the General Fund), and a cumulative $19.7 million
increase over the past five years.
2. Contractual Obligations: The departments continue to manage contract agreements as
efficiently and cost effectively as possible. However, a few of our contractual obligations
are experiencing significant cost increases. In FY 17, increases to City maintained contract
agreements with Orange County Animal Control, North Net Fire Training, Metro Cities
Fire Authority, technology software licensing, and landscape maintenance of City parks
and recreation trails, are resulting in an additional General Fund cost of $408,103. Further,
during FY 17 the City initiated contracts with private security firms to provide after hours
and special security services for certain City parks, the Metrolink Depot, and the Main
Library. This comes at an annual cost of $95,000.
3. Departmental Operating Budgets: Every year during the budget preparation process, the
City departments are charged with reviewing their existing operations to determine if there
are areas of budgetary savings and operational efficiencies. In addition, departments assess
if there are budget increases to request to address rising costs, respond to required
mandates, enhance existing service levels, or the need to implement a new program. This
is an effort the departments take extremely seriously and with much internal
scrutiny. Nevertheless, other than the contractual obligations noted above, departments are
holding the line with their budgets without making any significant changes to their
budgeted amounts from FY 17. This is getting more difficult each successive year as there
are programs and services that need budgetary increases but we are not in a position to do
so. These include consultant services for zoning and development code changes,
equipment replacements in various department, additional training opportunities, and to
address certain maintenance needs. Further, the proposed FY 18 budget does not include
the addition of any new full -time positions in spite of the increase services levels being
provided by nearly every department. Calls for service are at their highest levels for the
Police and Fire Departments, and planning and building applications are also at historic
high levels. Our parks and libraries are as busy as ever, while Public Works is managing
an increased number capital and infrastructure projects. Although it is a cliche, our City
staff is truly "doing more with less!" This is illustrated by the fact that the number of funded
Full Time Equivalent (FTE) positions has dropped significantly from 796 FTE's in FY 09
to 719 FTE's in FY 17. Nevertheless, we have implemented a "hiring chill" in holding
certain positions vacant for an extended period of time as a cost saving measure.
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4. Street Sweeping: The proposed FY 18 budget reflects the General Fund assuming the
cost of street sweeping services. This item was previously funded by the Sanitation Fund
and results in an impact of $510,000 to the General Fund. Going forward, staff will assess
other funding options for this service.
5. Internal Service Funds: The first -time utilization of the Cost Tree cost allocation
software has allowed staff to more efficiently evaluate the annual funding levels of the
Internal Services Funds (ISFs). We project FY 18 allocations of $6.8 million to the
Worker's Compensation, Accrued Liability (for retirement costs), Information
Technology, and Liability funds. Because the Equipment Maintenance fund is sustaining
a sufficient balance to not warrant an appropriation, total allocations to ISFs will be $1.1
million less than FY 17. As in FY 17, most ISFs are budgeted as part of FY 18 operational
costs as opposed to being funded by unreserved General Fund balance generated through
prior year savings. Of the remaining ISFs not included as part of operational costs, staff
is requesting a transfer of $800,000 to the Equipment Replacement Fund (720), $500,000
to the Computer Equipment Replacement Fund (790), $1,000,000 to the Capital Projects
Fund (500), and $1,000,000 to the Business Investment Fund (115) from General Fund
Unreserved Fund Balance.
It is important to note the impact of ongoing labor negotiations is not included in these budget
assumptions. As the agreements for all eight labor bargaining groups will expire effective June
30, 2017, labor negotiations have begun in earnest. Except as noted above, this preliminary budget
does not reflect any significant increases in the level of service or new programs. At this point in
the budget process, revenues for FY 18 are over expenditures by $187,655.
As we continue to refine the revenue and expenditure amounts, it is anticipated that the City
Council will be able to adopt a balanced FY 18 budget.
Preliminary Estimate of the General Fund Balance for FY 18
The beginning fund balance for FY 18 is projected to be $8.8 million and FY 18 revenues and
expenditures are expected to balance. The estimated ending unreserved fund balance for the
General Fund for FY 18 is $5.1 million following five proposed transfers from the unreserved fund
balance: $500,000 to the Computer Equipment Replacement Fund, $800,000 to the Equipment
Replacement Fund, $1,000,000 to the Business Investment Fund, $1,000,000 to the Capital
Projects Fund, and $500,000 to the Catastrophic Reserve. The following table highlights the
Estimated Available General Fund Balance for FY 18:
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Estimated Available General Fund Balance
Unreserved Fund Balance Available @ 6/30/17 $8,752,977
FY 18 Estimated Revenues $107,823,195
FY 18 Estimated Expenditures (107,635,540)
Revenue over Expenditures 187,655
Unreserved Fund Balance Available @ 6/30/18 8,940,632
Transfers Out
Transfer to Computer Equipment Replacement (500,000)
Transfer to Equipment Replacement Fund (800,000)
Transfer to Capital Projects Fund (1,000,000)
Transfer to Business Investment Fund (1,000,000)
Transfer to Catastrophic Reserve (500,000)
Total Transfers Out (3,800,000)
Estimate Available Fund Balance @ 6/30/18 5,140,632
General Fund Catastrophic Reserve 20,067,960
Est. Reserved & Unreserved General Fund Balance @ 6/30/18 $25,208,592
Five -Year Capital Improvement Plan
To establish consistency and comparability with other cities in the County, we have migrated from
a Seven -Year Capital Improvement Plan to a Five -Year Capital Improvement Plan as included in
the attachments.
As in recent years, we will maintain an increased level of capital improvement activity in Orange.
The FY 18 Five -Year Capital Improvement Plan (CIP) identifies 154 proposed projects. For FY
18 itself, there are 31 newly budgeted projects and 123 projects that are either a continuation of
previously approved plans or anticipated to start during the out - years. With these projects, the
City Council is investing nearly $23.2 million in the upcoming fiscal year and $83.5 million over
the five -year planning horizon. This is a major investment in the City's infrastructure, and
represents a significant commitment to our community's future.
The following are highlights of the FY 18 Five -Year Capital Improvement Plan projects:
• Construction phase of the Metrolink Parking Structure, located at the 100 block of North
Lemon Street.
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• Renovations to Shaffer Park including a new community building and realignment of the
baseball diamond.
• Renovation of Yorba Park, which includes regrading of the park, installation of a new gas
extraction system, and the establishment of an expanded dog park.
• Installation of a video surveillance system at Civic Center public counters and breezeway,
Orange Public Library and History Center and the Police Department's facility.
• Design of the new Fire Station 2 Apparatus Bay, including civil engineering work related
to road infrastructure.
• Construction of Cemetery Ridge Trail near Holy Sepulcher Cemetery.
• Replacement of landscaping at Handy Creek Corridor featuring drought tolerant plant
material and a new water irrigation system.
• Exterior painting of the Orange Public Library and History Center, El Modena, and Taft
Branch Libraries.
• Replacement of Radio Frequency Identification sorter at the Orange Public Library and
History Center.
• Commitment of $3.5 million to the Pavement Management Program and an additional $1.3
million for street maintenance and rehabilitation efforts at various locations throughout the
City.
• Commitment of $3.5 million towards 11 projects intended to maintain or improve the
City's water production and distribution, including $1.5 million for pipeline replacement.
As in years past, we anticipate challenges in funding certain infrastructure projects. Gas Tax
revenue is projected to increase by 3.4% to $3.0 million over FY 17's budgeted estimate due to
the steady increase in gasoline prices. Despite this, the persistent utilization of this fund for the
past several years has impacted our ability to properly contribute towards the Pavement
Management Program (PMP). As such, no funding towards PMP will be allocated in FY 18 from
Gas Tax, which is a significant decrease from FY 17's budget of $700,000 and FY 16's budget of
$2.0 million.
With the dissolution of ORA, the City has had to find alternative funding sources for Capital
reinvestments of City infrastructure projects. As such, the City Council has continued to set -aside
monies from the unreserved fund balance of the General Fund in the Capital Projects Fund (500),
resulting in an estimated beginning fund balance of $7.4 million for FY 18. While staff endeavors
to make every effort to prolong much needed repairs and improvements, reinvestment in our
infrastructure is necessary. The following projects are proposed for FY 18 for this fund, totaling
$2.4 million:
1. SCE LS -1 Street Lights Acquisition and LED Retrofit ($1,500,000);
2. Computer Aided Dispatch (CAD) & Mobile Upgrade ($400,000);
3. Cambridge Storm Drain and Street Improvements ($350,000);
4. Minor Traffic Control Devices ($95,000);
5. Monterey Street Lighting ($70,000); and,
6. Municipal Parking Lot Maintenance ($20,000).
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Facilities Condition Assessment Report
In the March 2017 City Council meeting, staff presented the Facilities Condition Assessment
(FCA) study that evaluated the condition of about 40 city buildings. As part of that study, a
prioritization scheme was utilized to determine the condition of the building and systems by
designating facility improvements from Priority One to Priority Four. Priority One
recommendations will be continually evaluated in FY 18, and will be incorporated in future fiscal
years. In FY 17, staff continues to make facility improvements, which includes the Civic Center
HVAC Replacement, Main Library Roof Rehabilitation, and Senior Center Ceiling Improvements.
Projects that will be in construction in FY 18 includes: (1) removing and replacing outdated
electrical distribution panels at Fire Headquarters; (2) replacing a water heater at El Modena
Library and a drinking fountain for ADA compliance; (3) replacing rotten fascia, windowsills, and
frames at Taft Library, and; (4) sealing the Police Department's glass dome and replacing a leaky
water heater.
Proposed Annual Work Plans for FY 18
A draft set of departmental mission statements, goals, service objectives, and work plans for the
upcoming budget year is provided for your review. The work plans are prepared for each division
within each department and specifically identify actions to be completed by a certain date using
budgeted funds. The City Manager and each department monitor the progress of the adopted work
plans. As such, these work plans provide a mechanism for each department to be held accountable
for the delivery of specific programs and services funded in their budget.
In keeping with prior years' objectives and feedback, staff has proposed work plans on behalf of
the City Council, which include the following highlights:
• Provide policy direction that safeguards financial stability while preserving community
character and maintaining a positive organizational direction.
• Provide the necessary resources to public safety to ensure the community remains among
the safest cities in California.
• Work closely with the State of California legislative representatives representing Orange
to ensure that the needs of Orange residents and business are addressed.
• Provide legislative leadership that ensures maximum accomplishment of the City's
Mission Statement and goals.
• Monitor the construction of the Metrolink Parking Structure which will serve Metrolink
patrons and Old Towne commercial district customers.
• Facilitate and provide policy direction to develop parking solutions to preserve and
enhance the economic viability of Old Towne.
• Work with the County of Orange, adjacent cities, care providers, and other stake holders
to effectively address the problem of homelessness in our community and region wide.
• Facilitate a positive relationship with Chapman University leadership and cultivate
community engagement opportunities.
• Evaluate options to assist businesses with processing City land use entitlements and other
business development activities.
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• Enhance the City's economic base by continuing to attract quality businesses to the City's
commercial corridors and industrial areas.
• Act as the Successor Agency to the Redevelopment Agency, responsibly and proactively
wind down the activities of the former RDA to minimize the fiscal impacts to the City's
general fund.
• Continue to look for options to enhance seamless interaction between residents and
businesses through the City's website.
• Monitor statewide efforts to address the rising costs of maintaining the Ca1PERS retirement
system and provide leadership in managing its impacts to the City's financial stability.
As a reflection of the economy in Orange, the proposed work plans continue to remain very modest
and, for the most part, address core services and programs. Although provided to the City Council
as part of this agenda package, staff will not be formally presenting the proposed FY 18 work plans
at this study session. Rather, if the City Council has specific questions regarding particular
department work plans, please inquire prior to the conclusion of this study session.
Conclusion
The City Council's prudent policies continue to set the stage for staff to meet the budgetary
challenges and demands for FY 18. The City continues to take advantage of the growing economy
to maintain services and enhance our infrastructure. While it is important to continue on the path
of caution to ensure long -term fiscal health, the City Council works hard to be able to allocate the
necessary resources to allow the City to provide the citizens and businesses of the City with the
excellent services they have come to expect.
Staff still has a few months to refine FY 18 revenue and expenditure amounts. In addition,
feedback from the City Council received at this study session will help further refine our
projections. The next study session is tentatively planned for April 25, 2017.
7. ATTACHMENTS
FY 18 Proposed Annual Work Plans
FY 18 Draft Five -Year Capital Improvement Plan
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