HomeMy WebLinkAboutAgenda Report - February 16, 1994 (48)I� CIN OF LODI
COUNCIL COMMUNICATION
AGENDA TITLE: Communications (January 27,1994 through February 9.1994)
MEETING DATE: February 16. 1994
PREPARED BY: City Clerk
RECOMMENDED ACTION: Receive letter from Mrs. Helen Zonkel requesting repair of sidewalks on
South Fairmont Avenue and refer the matter to staff.
BACKGROUND INFORMATION: The City Clerk's office Is In receipt of a letter from Mrs. Helen
Zonkel, Lodi resident (attached, marked Exhil* A), requesting
repair of the sidewalks on South Fairmont Avenue (west side of
800 Blokes. It Is recommended that the City Council refer this
matter to staff and bring back a report to the City Council.
FUNDING:
JMP
Attachment
None required.
nnifer M. emn
City Clerk
APPROVED:
THOMAS A. PETERSON
City Managw
cc.1
C
TO WROM IT MAY CONCRRN:
.1A1112.014
Ms Office
Nyj_�ERT_
I know the City Council wants to do everything► possible
to Protect and heln the citizens of Dodi.
There is a problem which I hope can be corrected as soon
as Possible. There are two city -lots with homes on them
on South Fairmont Street (west side of POO block) that do
not have any sidewalks in front of them. I have heard
there is an a ntinua ted law which states that this has to
be handled by the owner of the property, but this is
ridiculous when it hinders citizens. Within that block
are two Nursing Hames and many doctor offices. Friends
like t^ push their loved ones around this block in. wheel-
chairs. When it rains the wheels sink into mud and when
dry it is very bumpy. The only alternative is to po out
in the street which is very danverous.
I joist cant t'elieve Lodi has such a situation ?nd nothing
has been done about it.
An answer and attention to this matter will re arnreciated.
Sincerely,
Mrs. Helen ?.onke,
16-n SaratoPa
Lodi, CA Q524n
CIN COUNCIL MEETING
FEBRUARY 16,1994
ABC LICENSES
City Clerk Perrin read the following ABC License:
Payless thug Stores Ncrthwest. Inc., 1950 EI Camino Real, plus all locations
throughout the State, including 520 West Lodi Avenue. Lodi, Off Sate General
and Off Sale Beer and Wine License.
FILE NO. CC -7(f)
29
OF
CITY OF LODI
COUNCIL COMMUNICATION
AGENDA TITLE: Communications (January 27, 1994 through February 9, 1994)
MEETING DATE: February 16,1994
PREPARED BY: City Clerk
RECOMMENDED ACTION: No action - information only.
BACKGROUND INFORMATION: A copy of an application for Alcoholic Beverage Control License
has been received from the State of California Department of
Alcoholic Beverage Control for the following:
a) Payless Drug Stores Northwest, Inc., 1950 EI Camino Real, plus all locations throughout
the State, including 520 West Lodi Avenue. Lodi. Off Sale General and Off Sale Beer and
Wine License
520 West Lodi Avenue is in a C-1, Neighborhood Commercial, zone. This is an appropriate zoning for
this type of Alcoholic Beverage Control License.
FUNDING: None required.
1
iter M. P din
Ci y Clerk (((
JMP
Attachment
APPROVED --- _ -- — ��•
THOMAS A PETERSON MctiUfa 0400,
City Manager
CC -1
mw an fool"
ArruunON FORALCOHOLIC MRRA09 UCUM(f)
DeporAnad of Akohalk 8sves Co"
1901eroodway SAN FRANCISCO
Sacramento. Card. 93818
. «e..l n .....+.. «....+.
The undersigned hereby applies la
licenses daxribed as follows,
1 2. NAME(S) OF APPLICANT(S)
PAY LESS DRUG STORES NORTHWEST, INC.
4. None of Business
S. location of Business-lolwn ber nnA • /...e
1950 EL CAMINO REAL
PLUS ALL LOCATIONS THROUGHOUT THE STATE
M hW write Above TAU Ulee-iw Noodewewe ON"
1: W"(S)-OE UCENSE(S) FU NO.
21-286983
z r- RECEIPT NO.
OFF'SALE 'GENERAL • I 19AAA-31:
OFF SALE
$116"a
Appledandoe
ERestive Dates WO I Effective Dater
3. TYPE(S) OF TRANSACTIONS) FEE LIC.
TYPI
f
24071.1 TRF (1) 1270.00 21
24071.1 TRIP (78) 44460.00 21
24071.1 TRF (1331 17622.00 20
Clty and zip Code CownM I 1 i I
--- REDWOOD CITY CA 94063 SAN MATED TOTAL l 63.552.00
0 Ir Premises Ltcensea, 7. Aro Premises Inside
Show Type of license 20 and 21 City Limits?
S. Mailing Address Of different from 51 -Number and Strew Re -et ie.I
21nn9 MArchAll qt -Castro Valley, CA SAR46
9. Have yaw ever been convicted of a felo"? 10. Have you ever violated any of the provisions of the Akoholk
NO (P-12 C9RPORATIf7N) oew� ro *onto? Act a regwkKem of the Oeportment pen
e Act
I1. Explain a "YES" answer to items 9 at 10 on on attachment which shall be deemed port of this application.
12. Applicant agree► (o) that any manager employed in on -sale licensed premises will hove all the q.wl:locations of a IiceMN. end
(b) that he will not violate or cause or permit to be violated any of the provisions of the Alcoholic Beverage Control Act.
13. STATE OF CALIFORNIA Cowmy of --__-ALAMEDA---------------------- Deft --12,ta"9,i.........
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14. APPLICANT
SIGNHERE_/ -•----...----•----------------------------------------------..
John_You�g.x_ AAS'_,S£CX@kfll>;Y.................•
AMICATION BY TRANSFEROR
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1A N --.t.1 nt t:•.w...rd 17 C ... L..00hl et 2.1..na..t.1 IB- tie.nv Numb.rhl
Payless Drugstores21-286983
Northwest, Inc.
John Young, ss` ecretary
19. location Nvmber and Street City and Zip Code County
1950 EL CAMINO REAL REDWOOD CITY CA 94063
Do Not Write Below This Line. For Department Use (hely
Attacked! ❑ Recorded notice.
C Fidvciory popes.
Ej -----------------------------------------------• -COPIES mAtifo ........
91/_14/93
Renewal: Fee of ........... Paid at--- --- - -•--- --- ORce o.1.. ............... Receipt No .....................
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21 169273 ACT 29 $002 06/25/02 930701 FAT LESS DtUG S102!S N24Tw,jEST :wC
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MoCE510 CA 95356 _
23 172504 ACT 29 5404 M G3110 936721 0-7 L_ -SS, -39UG SI72!S 402T.W-sy IMC
144i_EAST F ST ST! 102
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21 27&636 ACT Z2 5531 0111.193 950701 OAT LESS 02UG Sl:;xS NOATnr!ST I%C
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i
CITY COUNCIL MEETING
FEBRUARY 16, 1994
ADOPTED 1994 - 96 BUDGET ORGANIZATION. FORMAT POLICIES AND GOALS
The City Council. on motion of Council Member Snider, Mann second, unanimously
adopted the 1994-96 budget organization, format policies and goals.
Council Member Davenport stated for the record that he would lite to see the following
matters addressed in the budget policies:
1. Policy on maintaining a Gat of debts of what the City owes and how often 6 is
reviewed;
2 Policy on the bid and purchase process, includir3 sole bidder;
3. The restructure of departments and activi&—m . including which department
generates Wk h income; and
4. Information regarding the Ci y's credit rating and how i works.
FILE NO. CC -6 AND CC -21(b)
fOF
(O'
CITY OF LODI
COUNCIL COMMUNICATION
AGENDA TITLE: BUDGET POLICIES (199496 FINANCIAL PLAN AND BUDGET)
MEETING DATE: February 16, 1994
PREPARED BY: Finance Director
RECOMMENDED ACTION: That the City Council approve the attached budget
policies, to be used in preparation of the City's
1994-96 Financial Plan and Budget.
BACKGROUND INFORMATION: At a Special Meeting of the City Council on
February 8, 1994, staff recommended several
changes to the City's budget preparation process
and documentation used to present the approved
City budget. Included in these recommendations are a new budget format and budget policies
necessary to develop and plan the City's 1994-96 Financial Plan and Budget.
Prior to the 1993-94 budget development process, the City Council expressed their concern with
the City's budget review process and the need to improve the information and documentation
available to the City Council and interested public in reviewing and evaluating staff
recommendations. Accordingly, the City Council directed the City adopt a "Town Hall"
meeting concept to allow greater public participation and to provide staff with the opportunity
to describe their operations, costs, staffing and impacts on services provided to the citizens of
Lodi. A series of "Town Hall" meetings was conducted in the Spring of 1993, which acted to
increase public participation in the budget process prior to adoption by the City Council.
BUDGET FORMAT
The current City budget is characterized as an "input" budget; that is, a budget that is focused
on the City's sources and uses of funds and is presented in a format by fund and department.
As such, this format serves the needs of each Department by stating fund ceilings and
identifying revenue sources. This format also serves the needs of the City Council by allowing
the City Council to evaluate funding and expenditure levels by fund and Department. However,
to the casual reader of the City's budget or the average citizen, this format does not provide
enough information necessary to make an informed decision and understand the services and
costs received.
APPROVED
/ THOMAS A. PETERSON ecycisa Daps.
City Mennger
CC•i
To improve the current budget format and review process, staff recommended that the City
adopt a "program budget" format to incorporate the elements outlined below. This format is
characterized as an "output" budget and describes the City services and facilities provided and
how the taxes and fees paid by the citizens of Lodi are used. Additionally, staff believes this
format is a more effective communications tool in serving the decision making process.
* The City's financial policies and goals - This element is necessary to
communicate the foundation policies on which financial decision are made;
provides both a short-term and long-term view on the use of financial resources;
reinforces the policy role of the City Council in maintaining the fiscal health of
the City; and directs attention on the overall direction of the City rather than
single issue items.
* The City's financial plan - This element focuses the attention of the Council, staff
and public on the current, short-term and long term financial condition of the City
and provides an opportunity to anticipate events and conditions which effect the
financial stability and solvency of the City.
* The City's operations/service plan - This element allows staff to communicate not
only the funds received and used in providing services, it provides Departments
with the opportunity to describe their services, goals, objectives, performance
standards, changes in service levels, and significant changes in operating costs.
BUDGET POLICIES
As outlined above, the City's budget policies are the foundation on which the budget is prepared.
Accordingly, these policies need to be adopted early in the budget preparation process.
At the Special Council meeting on February 8, 1994, staff presented the attached Budget policies
for Council review and comment. At the conclusion of the meeting, it was the consensus of the
City Council and staff that these policies should be presented at the Regular Council Meeting
scheduled February 16, 1994 as a "consent item" for adoption.
Dixon Flynn
Finance Director
Attachment
Budget Policies
/7a
CITY OF LODI
State of California
BUDGET POLICIES AND GOALS
1994-96 FINANCIAL PLAN AND BUDGET
JANUARY 1994
BUDGET POLICIES AND GOALS
1994-% FINANCIAL PLAN AND BUDGET
Jack A. Sieglock, Mayor
Stephen J. Mann, Mayor Pro Tempore
Ray G. Davenport, Council Member
Phillip A. Pennino, Council Member
John R. (Randy) Snider, Council Member
Thomas A. Peterson, City Manager
Prepared by the Department of Finance
H. Dixon Flynn, Finance Director
CITY OF LODI, CALIFORNIA
JANUARY 1994
.• Gam®
TABLE OF CONTENT; .y
Overview
Budget Policies
Financial Plan Organization
3
Budget Administration
4
General Revenue Management
S
Recreation and Community Center Fees
S
Enterprise Fund Fees and Rates
6
Other Fees and Rates
6
Revenue Distribution
8
Appropriation Limitation
10
Designated Fund Balances
10
Investments
11
Capital Financing and Debt Management
12
Capital Improvement Management
13
Personnel Resource Management
is
Productivity Reviews
16
Contracting for Services
17
Cost of Services
18
Major City Goals Overview 20
1994-% Financial Plan Budget Instructions
OVERVIEW - BUDGET POLICIES AND GOALS
OVERVIEW
The overall goal of the City's Financial Plan and Budget is to establish and maintain effective
management of the City's resources. Formal statements of budget policy and major goals
provide the foundation for effective planning. Accordingly, this section describes the basic
budget policies used in guiding the preparation and management of the City's overall budget.
This section is composed of the following major units:
* Budget Management and Control Policies
* Major City Goals
Some of the benefits to establishing financial policy include:
1. Publicly adopted policy statements contribute greatly to the credibility of and public
confidence in the City. For the credit rating industry and prospective investors, such
statements show the City's commitment to sound financial management and fiscal
integrity.
2. Established policy saves time and energy for the City Council and staff. Once decisions
are made at the policy level, the issues do not need to be discussed each tine a decision
has to be made.
3. The process of developing overall policy directs the attention of staff and Council to the
City's total financial condition rather than single issue areas. Moreover, this process
requires staff and Council to think about linking long-term financial planning with day-to-
day operations.
4. As overall policies are developed, the process of trying to tie issues together can bring
new information to the surface and reveal further issues that need to be addressed.
5. Developing financial policies reinforces the Council's policy role in maintaining good
financial condition.
6. Setting financial policies can improve the City's fiscal stability by setting a forward
looking approach to planning.
7. Explicit policies contribute to a continuity in handling the City's financial affairs.
1994-% Financial Plan h] Budget Instructions
OVERVIEW - BUDGET POLICIES AND GOALS
BUDGET MANAGEMENT AND CONTROL POLICIES
The following policies guide the preparation and execution of the 1994-96 Financial Plan and
Budget:
• Financial Plan Organization
* Budget Administration
• General Revenue Management
* Recreation and Community Center Fees
* Enterprise Fund Fees and Rates
• Other Fees and Rates
* Revenue Distribution
* Appropriation Limitation
MAJOR CITY GOALS
• Designated Fund Balances
* Investments
* Capital Financing and Debt Management
* Capital Improvement Budget
• Personnel Resource Management
* Productivity Reviews
* Contracting For Services
• Cost of Services Allocation
The involvement of the City Council in setting major City goals is essential to the budget
process. These goals provide short term and long term direction to staff, determine the
allocation of resources and establish priorities. These goals will provide focus to the
organization -wide efforts of staff and ensure that the most important, highest priority objectives
are accomplished .... and, that these priorities are communicated to the public.
The major City goals are provided in this part of the 1994-96 Financial Plan and Budget.
K
1994.96 Financial Plan Budget Instructions'Y`
BUDGET POLICIES
FINANCIAL PLAN ORGANIZATION
A. Through its financial plan, the City will:
1. Identify community needs for essential services
2. Organize the activities required to provide these services.
3. Establish policies and goals which define the nature and level of services required.
4. Identify activities performed in delivering services.
5. Propose objectives for improving the delivery of services.
6. Identify and appropriate resources required to perform services and accomplish
objectives.
7. Set standards to measure and evaluate the:
a. Output of activities
b. Accomplishment of objectives
e. Expenditure of appropriations
B. The City will use a two-year financial plan and budget concept to emphasize long-range
planning and effective management of services. The benefits of a two-year financial plan
and budget are:
1. Reinforces long-range planning
2. Concentrates on the development and budgeting for significant objectives
3. Establishes realistic schedules for completing objectives
4. Provides for orderly and structured operations
5. Promotes orderly spending patterns
C. The two year financial plan and budget will establish measurable objectives and allow
reasonable time to accomplish those objectives.
D. The status of major program objectives will be reported to the Council semi-annually.
E. The City Council will review and amend appropriations, if necessary, semi-annually.
3
f .
1994-96 Financial Plan Budget Instructions
BUDGET POLICIES
BUDGET ADMINISTRATION
A. City Council
The City Council is ultimately responsible to the public for the delivery and conduct of
City services and facilities. Accordingly, the Council appropriates funds to ensure the
delivery of services at the levels and in the priority established by the Council.
B. City Manager
The City Manager as the chief administrative officer provides the City Council and Staff
with general direction in the development and formulation of the staffs budget
recommendation. This includes: evaluating and assessing, current and projected issues
confronted by the City; determining the demand for services and facilities; identifying
the concerns of the voters; assessing the current and projected financial condition of the
City; and determining the final staff recommendation.
C. Finance Director/Treasurer
The Finance Director as the chief financial officer is responsible for budget development
and administration. This includes: developing and issuing the budget instructions and
calendar; advising the City Manager on budget policies; reviewing budget requests to
ensure they are complete and accurate; preparing the preliminary budget recommendation
for review by the City Manager; and, publication of the approved budget.
D. Public Works Director
The Public Works Director is responsible for preparing the City's capital improvement
budget (CIB) and the City's Equipment Replacement Schedule (ERS). In this capacity,
the Public Works Director works closely with the Electric Utility Director to prepare an
integrated CIB and ERS in recognition of the unique responsibilities and scope of
services offered by the Electric Department.
E. Department Directors
Department Directors are responsible for preparing their operating budget requests and
capital budget requests in accordance with the City's budget instructions. The Public
Works Director will prepare the City's consolidated budget request for vehicles and
major equipment items.
F. Failure to A:?opi Rudget
If the City Counci; fails to adopt the budget by July 1, the City Council may elect one
of the following courses of action until passage of a budget and the appropriation of
funds: (1) Provide the City Manager with Continuing Resolution Authority to allow
continued services at expenditure levels not greater than those levels approved in the
prior year budget; or (2) Require staff to obtain prior approval for the expenditure
(disbursement) of City funds.
4
194496 Financial Plan Budget IttstnKilons
16UDGET POLICIES
H. Public Record
Copies of the City budget as adopted shall be public records and shall be made available
M the public upon request.
GENERAL REVENUE MANAGEMENT
A. The City will seek to maintain a diversified and stable revenue base to protect it from short-
term fluctuations in any one revenue source.
B. To emphasize and facilitate long-range planning, the City will project operating revenues
for the succeeding five years.
C. The City will make all current expenditures with current revenues, avoiding procedures that
balance current budgets by accruing future revenues, rolling over short term debt or
borrowing reserves of one fund to another.
RECRF-%TION AND COMMUNITY CENTER FEES
A. Recreation service cost recovery goals are addressed as an integral component of the City's
comprehensive user fee study provided by David M. Griffith and Associates. itis the City's
goal that 30% of the total cost of the City's recreation and community center programs
should be recovered through fees and charges for recreation activities and the use of City
facilities and equipment. In achieving this overall cost recovery goal, the following
guidelines will be used:
Cost recovery for activities directed to adults should be relati.ely high.
2. Cost recovery for activities for youth should be relatively low.
Although abi:,ty to pay may not be a concern for all youth and senior participants,
these are desired program activities, and the cost of determining need may be greater
than the cost of providing a uniform service fee structure to all participants. Furth:r,
there is a community wide benefit to encourage high -levels of participation in youth
recreation activities regardles:, of financial status.
3. For cost recovery activities of less than 100%, there should be a differential in rates
between residents and non-residents.
1994-% Financial Plans .,f Budget instructions
BUDGET POLICIES
4. These policy guidelines are sufficient in themselves in providing direction for setting
the recreation and community center fees. Although these targets may be internally
useful i- administering recreation fees, the City's management should have as much
flexibility as possible in setting specific activity fees as long as they meet the
objectives and criteria provided above. However, the Recreation Department and
Hutchins Street Square will prepare and submit a summary of internal cost recovery
targets to the City Manager for various activity categories at least annually.
B. Charges will be assessed for use of rooms, pools, gymnasiums, ball fields, special use areas,
and recreation equipment for activities not sponsored or co-sponsored by the City. Such
charges will generally conform to the fee support categories listed above.
C. The Recreation Department and Hutchins Street Square may waive fees with the approval
of the City Manager when it is determined that an undue hardship exists or when in the best
interests of the City.
ENTERPRISE FUND FEES AND RATES
A. The City will set fees and rates at levels which fully cover the total direct and indirect costs
......including operations, capital outlay and debt service..... of the following enterprise
programs: electrical, water, sewer, Camp Hutchins, and solid waste.
B. The City will annually review and adjust enterprise fund fees and rates as required to ensure
that they remain appropriate and equitable, and to stem large rate increases.
OTHER FEES AND RATES
A. Ongoing Review
Fees and rates will he reviewed and updated on an ongoing basis to ensure that they are
correct and appropriate based on the changing needs of the community, i.e. economic
concerns, social issues, public safety.
B. General Concepts Regarding the Use of Service Fees and Rates
The use of fees and rates should be subject to the following general concepts:
Revenues normally will not exceed the reasonable cost of providing the service.
— Cost recovery goals should be based on the total cost of delivering the service,
including direct costs, departmental administration costs, and organization wide cost
such as accounting, personnel, date processing, vehicle maintenance and insurance.
3. The method of assessing and collecting fee-, should be as simple as possible in order
to reduce the administrative cost of collection.
6
199496 Financial Plan L ,.! Budget Instructions
BUDGET POLICIES
4. Rate structures should be sensitive to the "market" for similar services as well as to
smaller, infrequent users of the service and the influence rates and fees have on
economic development.
5. A unified approach should be used in determining cost recovery levels for various
programs based on the factors discussed above.
C. Low Cost Recovery Services
Based on the criteria discussed above, the following types of services should have very low
cost recovery goals. In selected circumstances, there may be specific activities within the
broad scope of services provided that should have user charges associated with them.
However, the primary source of funding for the operation as a whole should be general
purpose revenues, not user fees.
1. Maintaining and developing public facilities that are provided on a uniform,
community wide basis such as streets, parks and general purpose buildings.
2. Delivery of social service programs and economic development activities.
D. Comparability with Other Communities
1. Fee surveys should never be the sole or primary criteria in setting City fees. There are
many factors that affect how and why other communities have. set their fees at their
levels. For example:
a. What level of cost recovery is their fee intended to achieve compared with Lodi's
cost recovery objectives?
b. What costs have been considered in computing the fees?
C. When was the last time that their fees were comprehensively evaluated?
d. What level of service do they provide compared with Lodi's service or
performance standards?
C. Is their rate structure significantly different than Lodi's and what is it intended
to achieve?
2. Surveys comparing the City's fees to other communities is useful background information
in setting fees for several reasons:
a. They reflect the "market" for these fees and can assist in assessing the
reasonableness of the City's fees.
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1994-% Financial Plan « J Budget Instructions
BUDGET POLICIES
b. If prudently analyzed, they can serve as a benchmark for how cost effective the
City provides services.
These are difficult questions to address in fairly evaluating fees among different cities.
REVENUE DISTRIBUTION
The Council recognizes that generally accepted accounting principles for local government
discourage the "earmarking" of General Fund revenues, and accordingly, the practice of
earmarking general fund revenues for specific programs should be minimized. Approval of the
following Revenue Distribution policies for 1994-96 does not prevent future Councils from
directing General Fund resources to other funds and activities as necessary.
A. Property Tax Allocation
The City's property tax serves to provide for general municipal services as well as for
debt service, retirement obligations, public improvements and library purposes. The
passage of Proposition 13 on June 6, 1978, drastically changed the method of
establishing and allocating property tax revenues for all local agencies in California.
In addition to limiting annual increases in market value, placing a ceiling on voter
approved indebtedness ani redefining assessed valuation;, Proposition 13 established
a maximum County wide levy for general revenue purposes of 1 % of market value.
Under subsequent state legislation which adopted formulas for the distribution of this
County wide levy, the City now receives a percentage of total property tax revenues.
2. As discussed above, the City no longer controls the amount or distribution of its
property tax. In distributing property tax revenues between funds since the passage
of Proposition 13, the following minimum ratios for special purposes have
traditionally been used based on the tax rates that were in effect prior to the passage
of Proposition 13:
Fiscal Year 1978-79 Tax Rate Per $100 Percent
Special Municipal Purposes
Library $ .30 17.86%
General Municipal Purposes 1.38 82,14%
TOTAL $ 1.68 100.00%
3. For 1994-96 property tax revenues will be distributed proportionately to the following
funds as follows:
General Fund
Capital Outlay Fund - General Fund
Library Fund
TOTAL
1994-95
1995-96
65%
50%
15%
30%
2
100%
100%
1994-% Financial Plan %A Budget Instructions
BUDGET POLICIES
B. All Gasoline Tax revenues (which are restricted by the State for street -related purposes)
will be used for street maintenance and construction activities. With the State
requirement for the City's level of effort of general fund revenues to match or exceed
the State transfers to the City for gas tax eligible programs and projects, this approach
insures the accounting efforts in meeting State reporting requirements are kept to a
minimum.
C. All Transportation Development Act (TDA) revenues will be allocated to alternative
transportation programs, including regional and municipal transit systems, bikeway
improvements and other programs or projects designed to reduce automobile usage. It
is expected that alternative transportation programs - in conjunction with other state and
federal grants for this purpose- will be self-supporting from TDA revenues.
D. Enterprise Fund Allocations to the General Fund
1. The goal of Proposition 4 is to limit growth in appropriations of both state and
local government to changes in the cost of living and population in order to
control spending levels. Proposition 4 further describes the difference between
"tax proceeds" and fees. Tax proceeds are the revenue from regulatory licenses,
user charges and user fees to the extent the revenue exceeds the cost of providing
the regulation, product or service. (This includes transfers from an enterprise
fund to the extent those funds exceeded the cost of providing the services).
2. As discussed above. the funds transferred from the City's enterprise funds to the
City's general fiord are "In -Lieu Taxes" to the extent they exceed the cost of
services provided by general services (accounting, personnel, legal, insurance,
etc.). These taxes will be levied during the 1994-96 Financial Plan and Budget
period based on rrior year revenues as follows:
In -lieu Tax - Electric 9%
In -lieu Tax - Water 20%
In -lieu Tax - Sewer 11 %
E. Special Revenue Allocations to the General Fund
Revenues the City receives for specific services (i.e. vehicle tow charges) will not be
designated for use by an individual department unless required by statute or approved by
the City Council. When required by statute (i.e. asset seizure), these funds will be first
allocated to the purchase of necessary and essential equipment and/or services prior to
purchase with General Fund resources.
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199496 Financial Plan i..o'd Budget Instructions
BUDGET POLICIES
APPROPRIATION LIMITATION
A. The Council will annually adopt a resolution establishing its appropriation limit calculated
in accordance with Article X11113 of the Constitution of the State of California, Section
7900 of the State of California Government Code, and any other voter approved
amendments or state legislation that affect the City's appropriation Iimit.
B. The City will strive to develop revenue sources, both new and existing, which are
considered non -tax proceeds in calculating its appropriations subject to limitation.
C. The City will annually review user fees and charges and report to the Council the amount
of program subsidy, if any, that is being provided by the General Fund or Enterprise
Funds.
FUND BALANCE DESIGNATIONS AND RESERVES
A. The City should maintain fund balances of at least 15% of operating expenditures in the
General Fund as well as the Electric, Sewer, Water and Camp Hutchins Funds. This is
considered the minimum level necessary to maintain the City's credit worthiness and to
adequately provide for:
1. Economic uncertainties, local disasters, and other financial hardships or
downturns in the local economy.
2. Contingencies for unforeseen operation or capital needs.
3. Cash flow requirements.
B. The City will establish and maintain an Equipment Replacement Fund to provide for the
timely replacement of vehicles and capital equipment. This includes items with an
individual replacement cost of $3,000 or more. The minimum fund balance in the
Equipment Replacement Fund should be at least 30% of the original purchase cost of the
equipment purchased. The annual contribution 'i the Fund will generally be based on
the annual "use allowance" which is determined based on the estimated life of the vehicle
or equipment and its original purchase cost. Interest earnings and sales of surplus
equipment as well as any related damage and insurance recoveries will be credited to the
Equipment Replacement Fund.
C. The Council may designate specific fund balance levels for future development of capital
projects which it has determined to be in the best long-term interests of the City.
D. in addition to the designations noted above, fund balance levels will be sufficient to meet
funding requirements for projects approved in prior years which are carried forward into
the new year; debt service reserve requirements; reserves for encumbrances; and other
reserves or designations required by contractual obligations, state law, or generally
accepted accounting principles.
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1994-% Financial Plan h..d Budget Instructions
BUDGET POLICIES
INVESTMENTS
A. Investments and cash management will be the responsibility of the City Finance
Director/Treasurer or designee.
B. The City's primary investment objective is to achieve a reasonable rate of return while
minimizing the potential for capital losses arising from market changes or issuer default.
Accordingly, the following factors will be considered in priority order in determining
individual investment placements:
1. Safety
2. Liquidity
3. Yield
C. The City will strive to keep idle cash balances fully invested through daily projections
of cash flow requirements. To avoid forced liquidations and losses of investment
earnings, cash flow and future requirements will be the primary consideration when
selecting maturities.
D. As the market and the City's investment portfolio change, care will be taken to maintain
a healthy balance of investment types and maturities.
E. The City will invest only in those instruments authorized by the California Government
Code Section 53601. The City will not invest in stock, will not speculate, and will not
deal in futures or options. The investment market is highly volatile and continually
offers new and creative opportunities for enhancing interest earnings. Accordingly, the
City will thoroughly investigate any new investment vehicles prior to committing City
funds to them.
F. Current financial statements will be maintained for each institution in which cash is
invested. Investments will be limited to 20 percent of the total net worth of any
institution and may be reduced further or r- fused altogether if an institution's financial
situation becomes unhealthy.
G. in order to maximize yields from its overall portfolio, the City will consolidate cash
balances from all funds for investment purposes, and will allocate investment earnings
to each fund in accordance with generally accepted accounting principles.
H. Ownership of the city's investment securities will be protected through third -party
custodial safekeeping.
1994-% Financial Plan a..d Budget Instructions
BUDGET POLICIES
I. The City Finance Director/Treasurer will develop and maintain a comprehensive, well
documented investment reporting system which complies with Government Code Section
53607. This system will provide the City Council with appropriate investment
performance information.
J. The City Finance Director/Treasurer will develop and maintain an Investment
Management Plan which addresses the City's administration of its portfolio, including
investment strategies, practices, and procedures.
CAPITAL FINANCING AND DEBT MANAGEMENT
Capital Financing
A. The City will consider the use of debt financing only for one-time capital projects and
only under the following circumstances:
1. When the ;project's useful life will exceed the term of the financing.
2. When project revenues or specific resources will be sufficient to service the long-term
debt.
B. Debt financing will not be considered appropriate for any recurring purpose such as
current operating and maintenance expenditures. The issuance of short-term instruments
such as revenue, tax, or bond anticipation notes is excluded from this limitation.
C. Capital improvements will be financed primarily through user fees, service charges,
assessments, special taxes, or developer agreements when benefits can be specifically
attributed to users of the facility.
D. The City will use the following criteria to evaluate pay-as-you-go versus long-term
financing in funding capital improvements:
Pay -As -You -Go
1. When current revenues and adequate fund balances are available or when project phasing
can be accomplished.
2. When debt levels adversely affect the City's credit rating.
3. When market conditions are unstable or present difficulties in marketing.
Long -Tenn Financing
1. When revenues available for debt service are deemed to be sufficient and reliable so that
long-term financing can be marketed with investment grade credit ratings.
2. When the project securing the financing is of the type which will support an investment
grade credit rating.
12
199496 Financial Plan u..J Budget Instructions
BUDGET POLICIES
3. When market conditions present favorable interest rates and demand for City financing.
4. When a project is mandated by State or Federal requirements and current revenues and
available fund balances are insufficient.
5. When the project is required to meet or relieve service requirements.
6. When the life of the project or asset financed is 10 years or longer.
Debt Management
E. The City will not obligate the General Fund to secure long-term financing except when
the marketability can be significantly enhanced.
F. No more than 60% of all capital projects will be funded from long-term financing; and
direct debt will not exceed 2% of the City's assessed valuation.
G. A feasibility analysis will be prepared for each long-term financing to assess debt service
on current and future operations. This will also include an analysis on the reliability of
revenues to support a debt service.
H. The City will generally conduct debt financing on a competitive basis. However,
negotiated financing may be used due to market volatility or the use of an unusual or
complex financing or security structure.
1. The City will seek investment grade ratings (Baa/BBB or greater) on any direct debt and
will seek credit enhancements such as letters of credit or insurance when necessary for
marketing purposes, availability and cost-effectiveness.
J. The City will monitor all forms of debt annually coincident with the budget process.
K. The City will diligently monitor its compliance with bond covenants and ensure its
adherence to federal arbitrage regulations.
L. The City will maintain good communications with bond rating agencies about its financial
condition. The City will follow a policy of full disclosure on every financial report and
bond prospectus (Official Statement).
CAPITAL INIPROVEI%IENT BUDGET
A. Construction projects and capital purchases (other than vehicles, equipment and major
computer software acquired through the Equipment Replacement Fund and projects
funded by an Enterprise Fund) which cost more than $10,000 will be included in the
Capital Improvement Budget (CIB); minor capital outlays of $10,000 or less will be
included with the operating activity budgets. Enterprise Fund projects and major
equipment purchases will be based on the capitalization practices of the Enterprise.
13
1994-% Financial Plan i...J Budget instructions
BUDGET POLICIES
B. The purpose of the CIB iq to systematically plan, schedule, and finance capital
acquisitions to ensure cost-effectiveness as well as conformance with established policies.
The CIB will be a five year plan organized into the same functional groupings used for
the operating budget. The CIB will reflect a balance between capital replacement
projects which repair, replace, or enhance existing facilities, equipment or infrastructure;
and capital facility projects which significantly expand or add to the City's existing fixed
assets.
C. Every capital project will have a project manager who will prepare the project proposal,
ensure that required phases are completed on schedule, authorize all project expenditures,
ensure that all regulations and laws are observed, and periodically report project status.
D. A CIB Coordinating Committee, chaired by the Directors of Public Works and the
Electric Utility Department, will review project proposals, determine project phasing,
recommend project managers, review and evaluate the draft capital budget plan, and
report project status at least annually to Council. The Committee will be made up of
representative of each Department.
E. The Capital Improvement Budget will emphasize project planning, with projects
progressing through at least two and tip to six of the following phases:
* DESIGNATED - Set aside funding for future project development under "pay-as-you-go"
financing.
* STUDY - Includes concept design, site selection, feasibility analysis, schematic design,
environmental determination, property appraisals, scheduling, grant application, grant
approval, and specification preparation for equipment purchases.
* ACQUISITION - Includes equipment purchases and property acquisition for projects,
if necessary.
* DESIGN - Includes final design, plan and specification preparation, and construction cost
estimation.
* CONSTRUCTION - Includes bid administration, construction, project inspection and
management, and closeout.
* DEBT SERVICE - Installment payments of principal and interest for completed projects
funded through debt financing.
Generally, it will become more difficult for a project to move from one phase to the next. As
such, more projects will be studied than will be designed, and more projects will be designed
than will be constructed or purchased.
F. Funding and related appropriation to a project account will only be made upon approval
of each phase by the City Council. Accordingly, projc,A appropriations for acquisition
and construction will generally be approved when contracts are awarded.
14
y f,+
199496 Financial Plan s..A Budget Instructions
BUDGET POLICIES
G. Project phases will be listed as objectives in the program narratives of the Activity
responsible for the project.
PERSONNEL. RESkURCE MANAGEMENT
A. Regular authorized staffing will be fully budgeted and funded.
B. Staffing and contract service budget ceilings will limit total expenditures for regular
employees, temporary employees, overtime and independent contractors hired to provide
operating and maintenance services.
C. Regular employees will be the core work force and the preferred means to staff ongoing,
year-round activities rather than independent contractors. The city will strive to provide fair
compensation and benefit schedules for its authorized regular work force. Each regular
employee will:
1. Fill an authorized regular position.
2. Be assigned to an appropriate bargaining unit or representative group.
3. Receive salary and benefits consistent with labor agreements or other compensation
plans.
D. To manage the growth of the regular work force and overall staffing costs, the City will
follow these procedures:
1. The City Council will authorize all regular positions except in the case of the Library
which is governed by the Library Board.
2. The Personnel Department will coordinate the hiring of all employees and evaluate the
reallocation of existing positions.
3. All requests for additional regular positions will include an evaluation of:
a. The necessity, term, and expected results of the proposed position.
b. Staffing and material costs including salary, benefits, equipment, uniforms, clerical
support, and facilities.
c. The ability of private industry to provide the proposed service.
d. Additional revenues or cost savings which may be realized.
4. Periodically, and prior to any request for additional regular positions, programs will be
evaluated to determine if they can be accomplished with fewer regular employees under
a "productivity review".
15
199496 Financial Plan u..d Budget Instructions
BUDGET POLICIES
E. Temporary employees are employees other than regular employees, elected officials, and
volunteers budgeted in hours. Temporary employees will augment regular City staffing
only as limited term employees, seasonal employees, emergency, intermittent, contract
employees, and interns. The City Manager will encourage the use of temporary
employees to meet peak workload requirements, fill interim vacancies, and accomplish
tasks where less than regular, year-round staffing is required.
F. Contract employees will be defined as temporary employees with written contracts
approved by the City Manager who may receive approved benefits depending on hourly
requirements and the length of their contract. Contract employees will generally be used
for medium-term (generally between six months and two years) projects, programs, or
activities requiring specialized or augmented levels of staffing for a specific period of
time. The services of contract employees will be discontinued upon completion of the
assigned project, program or activity. Accordingly, contact employees will not be used
for services that are anticipated to be delivered on an ongoing basis.
G. Independent contractors will not be considered City employees. Independent contractors
may be used in two situations:
1. Short term, peak work load assignments to be accomplished through the use of
personnel contracted through an outside employment agency. All placements
through an outside employment agency will be coordinated through the Personnel
Department and subject to the approval of the Personnel Director.
2. Construction of public works projects and the provision of operating,
maintenance, or specialized professional services not routinely performed by City
employees. Such services will be provided without close supervision by City
staff, and the required methods, skills, and equipment will generally be
determined and provided by the contractor.
PRODUCTIVITY REVIEW
The City will constantly monitor and review its methods of operation to ensure that services
continue to be delivered in the most cost effective manner possible. This review process
encompasses a wide range of issues, including:
A. Maintaining a decentralized approach in managing the City's services. Although some
level of centralization is necessary for review and control purposes, decentralization
supports productivity by:
o Encouraging accountability by delegating authority to the lowest possible level.
o Stimulating creativity, innovation, and individual initiative.
o Reducing the administrative cost of operation by eliminating unnecess^ry review
procedures.
16
1994-96 Financial Plan t Budget Instructions
BUDGET POLICIES
o Improving the organization's ability to respond to changing needs and to identify and
implement cost saving programs.
o Assigning responsibility for effective operations and citizen responsiveness to the
department.
B. Analyzing systems and procedures to identify and remove unnecessary review
requirements.
C. Evaluating the ability of new technologies and related capital investments to improve
productivity.
D. Investing in the City's most valuable asset - personnel staff - by developing the skills and
abilities of all City employees, with special emphasis on first-line supervisors.
E. Implement annual performance reviews and appropriate methods of recognizing and
rewarding exceptional employee performance.
F. Evaluating local market service providers and other government agencies to determine
whether the service is available at a lower cost than provided by City staff.
G. Periodic formal review of operations on a systematic, ongoing basis.
CONTRACTING FOR SERVICES
A. General Policy Guidelines
1. Contracting with the private sector and other government agencies for the delivery
of services provides the City with the opportunity for cost containment and
productivity enhancement. As such, the City is committed to using private sector
resources in delivering municipal services as a key element in our continuing
efforts to provide cost effective services.
2. Private sector contracting approaches under this policy include construction
projects, professional services, outside employment agencies, and ongoing
operation and maintenance services.
3. In evaluating the costs of private sector contracts compared with in-house
performance of the service, indirect, direct and contract administration costs of
the City will be identified and considered.
4. Whenever private sector providers are available and can meet established service
levels, they will be seriously considered as viable service delivery alternatives
using the evaluation criteria outlined below.
17
1994% Financial Plan s.=..1 Budget Instructions
BUDGET POLiCIES
5. For programs and activities currently provided by City employees, conversions
to ccritract services will generally be made through attrition, reassignment of
absorption by the contractor.
B. Evaluation Criteria
Within the general policy guidelines stated above, the cost-effectiveness of contract
services in meeting established service levels will be determined on a case-by-case basis
using the following criteria:
1. Is a sufficient private sector market available to deliver this service?
2. Can the contract be effectively and efficiently administered?
3. What are the consequences if the contractor fails to perform, and can the contract
reasonably be written to compensate the City for any such damages?
4. Can a private sector contractor better respond to expansions, contractions, or
special requirements of the service?
5. Can the work scope be sufficiently defined to ensure that competing proposals can
be fairly and fully evaluated. as well as the contractor's performance after bid
award?
6. Does the use of contract services provide the City with an opportunity to redefine
service levels?
7. Will the contract limit the City's ability to deliver emergency or other high
priority services?
8. Overall, can the City successfully delegate the performance of the service but still
retain accountability and responsibility for its delivery?
ALLOCATING THE COST OF SERVICES (ABATEMENT)
A. General Policy Guidelines
The City is committed to achieving efficiency by centralizing general
administrative services to the extent they serve the needs of the City as a whole
and provide for greater cost efficiency. Accordingly, general and administrative
services will be charged to those activities not financed by the General Fund by
use of a cost allocation plan.
2. The City will develop a cost allocation plan for general government services
provided the City's enterprise fund and special revenue fund activities in
accordance with accepted cost allocation methodology. Tire City Library will be
subsidized for the cost of general government services.
3. The cost of general government services will be financed by operating transfers
established in the cost allocation plan and transferred to the general fund annually
at the time the City budget is adopted.
18
199496 Financial Pian b A Budget Instructions
BUDGET POLICIES
4. The Finance Director will perform periodic reviews of the City's cost allocation
plan to ensure the distribution of costs are made in accordance with accepted
practices of the City. T?te results will be published annually in the City's budget.
5. The City will develop a cost allocation plan in accordance with Federal and State
policies to ensure the maximum allowable return to the City of indirect/overhead
costs.
B. Cost Allocation Criteria
1. Costs will be allocated considering the following criteria:
* Cause and effect - the identification of output in proportion to the service
provided.
* Benefits received - the allocation of cost in relation to the benefits
received.
* Fairness and equity - the allocation must be mutually satisfactory to the
parties affected.
* Ability to bear - the allocation of cost must consider the ability to pay and
the impact on the services provided.
2. Costs will be allocated to activities when the overall service benefits the City as
a whole but a particular cost benefit can not be shown.
3. The criteria for allocating costs will be included in the City budget to allow for
evaluation of the cost distribution criteria.
M
199496 Financial Plan as- ! Budget Instructluns
MAJOR CITY GOALS
Background
Under the City's financial plan and budget process, the City Council will become involved early
in the budget process by identifying major City goals and priorities. These goals become the
focus for organization wide efforts to ensure that the most important, highest priority objectives
are accomplished .... and that these high priority objectives are communicated to the public.
To meet these needs, the City Council will hold a one day goal setting session in January each
year as the first step in preparation of the City's financial plan and budget.
In setting the City's major goals the Council will receive a review from the City Manager on
the following:
a. Current and projected financial condition
b. Current policies and community expectations
C. Current goals
Selection of Major City Goals
Under the goal setting process, the City Council and City Manager will meet and establish City-
wide goals which will than be ranked using the following criteria:
* Programs and Projects Rated A
These represent high priority goals for the Council, and as such, they should be included
in the Preliminary Financial Plan and adequate funding will be made available.
* Programs and Projects Rated B
These represent a high priority, but they will be considered in the context of higher
priority goals and available resources.
* Programs and Projects Rated C
These represent programs and projects to be deferred to the next financial plan and
budget.
Each program and project rated A will be developed and included in the City's Financial Plan
and Budget in this section of the budget. This will be in a narrative form with the following
information:
* Objectives * Financial and staff resources required
* Background * Outcome/final product
* Action steps
* Responsible department
20
1994-% Financial Plan ...d Budget instructions
MAJOR CITY GOAL - ECONOMIC DEVELOPMENT
OBJECTIVE
Develop and implement a focused economic development plan to identify specific activities
necessary to preserve and promote the financial stability of Lodi and the City's General Fund.
BACKGROUND AND WORKSCOPE
This program is established to focus additional City resources and efforts in support of the local
economy and to assure a strong General Fund. This program will be funded by additional
revenues raised from business tax and transient occupancy tax.
The scope of the work will be developed on a project -by -project basis. Examples of projects
and services which could be eventually funded through this program include:
* A full time economic d,-velopment coordinator
* An additional planner in community development for redevelopment agency planning
* Additional police patrol officers for downtown security
* Annexation of vacant land West of South Sacramento and Kettleman
* Downtown Revitalization Plan
* Cherokee Lane Revitalization Plan
* Programs and projects to promote tourism
* Programs and projects to attract and retain business to Lodi
- Waive fees and licenses in part or whole (specific incentive)
- Extend payment of fees
- Refund !axes
- Reduce fees, charges and licenses in part or whole (general incentive)
- Marketing Lodi through a professional marketing firm
- Establish business forum
ACTION STEPS
Specific action steps will be established as projects are defined
RESPONSIBLE DEPARTMENT AND PROGRAM
* Administration
* Others (depending on the project)
FINANCIAL AND STAFF RESOURCES
Funding in the amount of $300,000 in 1994-95 for a full time economic development
coordinator, community development planner, and consulting firms for the Downtown and
Cherokee Lane Revitalization Plan. Additional resources may be required to complete some of
the projects currently identi ied if the Council wishes to take a more aggressive program.
OUTCOME/FINAL PRODUCT
To be determined on a project by project basis.
2!