Fiscal Year 2020 Budget and Fiscal Policy Guidelines Copyrighted
December 17, 2018
City of Dubuque Action Items # 10.
ITEM TITLE: Budget and Fiscal Policy Guidelines for Fiscal Year 2020
SUMMARY: City Manager recommending adoption of the Fiscal Year
2020 Budget Policy Guidelines.
SUGGESTED DISPOSITION: Suggested Disposition: Receive and File; Approve
ATTACHMENTS:
Description Type
NNM Memo City Manager Memo
Staff Memo Staff Memo
Budget and Fiscal Policy Guidelines for the Fiscal Year Supporting Documentation
2020
Dubuque
THE CTTY OF �
DT T� � All-America CitY
`� ' � II ��'
Masterpiece on the Mississippi
_�„�•2,r�z.z�r,3.��,�
TO: The Honorable Mayor and City Council Members
FROM: Michael C. Van Milligen, City Manager
SUBJECT: Budget and Fiscal Policy Guidelines for Fiscal Year 2020
DATE: December 12, 2018
Budget Director Jennifer Larson is recommending adoption of the Fiscal Year 2020
Budget Policy Guidelines.
The budget guidelines are developed and adopted by City Council during the budgeting
process in order to provide targets or parameters within which the budget
recommendation will be formulated within the context of the City Council Goals and
Priorities established in August 2018. The final budget recommendation may not meet
all of these targets due to changing conditions and updated information during budget
preparation. To the extent the recommended budget varies from the guidelines, an
explanation will be provided in the printed budget document.
The Fiscal Year 2020 budget guidelines call for a 0.97% reduction in the property tax
rate, which would be no property tax increase for the average Dubuque homeowner and
a property tax decrease for commercial ( 0.59%, $19.42), industrial ( 0.72%, $34.88)
and multi-residential ( 5.69%, $106.36) properties.
The City property tax rate projected in these budget guidelines and impact on the
average residential property owner ($139,493) is as follows:
. -
FY 2020 10.4856 -0.97%
FY 2021 10.5168 +0.30%
FY 2022 10.8831 +3.48%
FY 2023 11.3251 +4.06%
FY 2024 11.9426 +5.45%
. . - - - . . . � .
- � . � . - . - . .-
FY 2019 $25,766,328
FY 2020 $26,370,503 +2.3% +0.00% / +$0
FY 2021 $26,616,587 +0.9% +0.30% / +$2.30
FY 2022 $27,711,877 +4.1% +3.48% / +$26.90
FY 2023 $29,014,168 +4.7% +4.06% / +$32.46
FY 2024 $30,692,094 +5.8% +5.45% / +$45.36
The recommended guideline is no increase for the average residential property owner
assuming the Homestead Property Tax Credit is fully funded. A one percent increase in
the tax rate will generate approximately $265,942.
Dubuque is the SECOND LOWEST in the state for property tax rate. The highest
ranked city (Council Bluffs) is 74.17°k higher than Dubuque's rate, and the average is
46.41 °k higher than Dubuque.
City Property Tax Rate Comparison for Eleven Largest lowa Cities
11 Council Bluffs $18.26
10 Des Moines $18.15
9 Waterloo $17.45
8 Daven ort $16.78
7 Sioux Cit $16.33
6 lowa Cit $16.18
5 Cedar Ra ids $15.22
4 West Des Moines $12.78
3 Anken $12.29
2 Dubuque (FY 2020) $10.49
1 Ames $10.07
AVERAGE w/o Dubuque $15.35
These guidelines include $697,351 for recurring and $478,777 for non-recurring
improvement packages.
2
Significant issues impacting the FY 2020 budget include the following:
1 . State Funded Backfill on Commercial and Industrial Property Tax
a. Elements of the property tax reform passed by the lowa Legislature in
2013 have created a tremendous amount of uncertainty in the budget
process. While the State has committed to provide some funding for the
City revenue reductions caused by the decrease in taxable value for
commercial and industrial properties, key legislators have been quoted in
the media as casting doubt on the reimbursements continuing. It is
assumed the backfill will be fully funded in FY 2020, then beginning
in FY 2021, it is assumed that the State will eliminate the backfill over
a five-year period.
The projected reduction of State backfill revenue to the general fund is as
follows:
� .
2020 $0
2021 -$206,540
2022 -$206,540
2023 -$206,540
2024 -$206,540
2025 -$206,540
Total -$1 ,032,700
2. Gaming Revenue Reduction.
a. Gaming revenues generated from lease payments from the Dubuque
Racing Association (DRA) are estimated to increase $85,928 from
$4,901 ,176 in FY 2019 to $4,987,104 in FY 2020 based on revised
projections from the DRA. This follows a $45,165 increase from budget in
FY 2019 and a $159,046 decrease from budget in FY 2018.
b. The Fiscal Year 2020 projections are based on five months of actual
experience and gross gaming revenues are up 4.7°k. In Calendar Year
2018, gross gaming revenues at the Q Casino is up 4°k and the Diamond
Jo is up 1 °k. Overall, the Dubuque gaming market is up 2.2°k for Calendar
Year 2018. Q Casino's increase is due to the hotel renovation, new
restaurant (Farmhouse), and new gaming product and entertainment mix.
The DRA has projected a 1°k increase in gross gaming revenue for
Calendar Year 2019.
c. The State of Illinois passed a Video Gaming Act on July 13, 2009 that
legalized the use of Video Gaming Terminals in liquor licensed
3
establishments including bars, restaurants, truck stops and certain
fraternal and veterans' organizations. In the part of Illinois that affects the
Dubuque market, the first year of operation of video gaming terminals
generated $1 million in revenue monthly. The use of video gaming
terminals has now grown to $9.4 million monthly for the five counties
closest to Dubuque and in a direct line with Rockford, IL, which has
limited revenue to the gaming market in Dubuque. The Q Casino and
Diamond Jo Casino average monthly revenue is $10.8 million. The
number VGT machines have increase by 84°k since 2013. The five
counties in Illinois had 1037 machines in 2013 and currently have 1906
machines. Currently, Q Casino has 833 Slot Machines and Diamond Jo
has 916 for a total of 1 ,749 or 9°k less. This is a similar impact of
building approximately two more casinos halTway between Dubuque
and Rockford. The revised DRA gaming projections include minimal
growth in revenues over the next five years with a growth rate of 1°k in FY
2020 and FY 2021 and a growth rate of 0°k in FY 2022 and beyond.
3. New multi-residential property class in Fiscal Year 2017.
a. Beginning in FY 2017 (July 1 , 2016), new State legislation created a new
property tax classification for rental properties called multi-residential,
which requires a rollback, or assessment limitations order, on multi-
residential property which will eventually equal the residential rollback.
Multi-residential property includes apartments with 3 or more units.
Rental properties of 2 units were already classified as residential
property. The State of lowa will not backfill property tax loss from the
rollback on multi-residential property.
- . � . � . .
FY 2017 86.25°k $ 331 ,239
FY 2018 82.50°k $ 472,127
FY 2019 78.75°k $ 576,503
FY 2020 75.00°k $ 696,046
FY 2021 71 .25°k $ 614,319
FY 2022 67.50°k $ 952,466
FY 2023 63.75°k $ 1 ,018,664
FY 2024 55.63°k $ 1 ,187,123
Total $5,848,487
This annual loss in tax revenue of$696,046 in FY 2020 and
$1,187,123 from multi-residential property when fully implemented in
FY 2024 will not be backfilled by the State. From Fiscal Year 2017
through Fiscal Year 2024 the City will lose $5,848,487 in total, meaning
landlords will have paid that much less in property taxes. The state did
not require landlords to charge lower rents or to make additional
investment in their property.
4
4. Fiscal Year 2020.
The hiring freeze ended during Fiscal Year 2019 with most of the
positions funded only a partial fiscal year in FY 2019, so these will be
additional new costs in Fiscal Year 2020 of$382,470.
5. Debt Reduction
a. Outstanding G.O. debt (including tax increment debt, economic
development projects TIF rebates remaining payments and general fund
lease agreement) on June 30, 2019 will be $129,940,743 (56.40°k of the
statutory debt limit) leaving an available debt capacity of$96,572,012
(43.60°k). In FY 2018 the City was at 63.42°k of statutory debt limit, so
56.40°k in FY 2019 is a 7.02 percent decrease in use of the statutory debt
limit.
The City also has debt that is not subject to the statutory debt limit. This
debt includes revenue bonds. Outstanding revenue bonds payable by
water, sewer and stormwater fees on June 30, 2019 will have a balance of
$141 ,390,905. The total City indebtedness as of June 30, 2019, is
projected to be $266,331 ,648. The total City indebtedness as of June
30, 2018, was $271,788,100. In FY 2019, the City will have a projected
$5,456,452 (-2.0%) less in debt.
In August 2015, the Mayor and City Council adopted a debt reduction
strategy which targeted retiring more debt each year than was issued by
the City. The FY 2019 budget achieved that target throughout the 5-year
CIP and also substantially beat overall debt reduction targets over the
next five and ten-year periods. The Fiscal Year 2020 review of Capital
Improvement Budget requests is not yet complete, so there are no
revised Fiscal Year 2020 debt projections as of yet. In addition, these
debt projections do not include any general obligation debt for the
Five Flags Renovation.
b. You can see that based on the FY 2019 budget process, the Mayor and
City Council have significantly impacted the City's use of the statutory
debt limit established by the State of lowa. In Fiscal Year 2015, the City
of Dubuque used 90°k of the statutory debt limit. In Fiscal Year 2019, the
use of the statutory debt limit would be 56°k, and by the end of the current
recommended 5-Year Capital Improvement Program (CIP) budget in
Fiscal Year 2023, the City of Dubuque would be at 37°k of the statutory
debt limit. Projections out 10 years to Fiscal Year 2028 show the City of
Dubuque at 20°k of the statutory debt limit. This is an improvement on
the debt reduction plan adopted in August 2015, that first began
implementation in Fiscal Year 2016.
5
Statutory Debt Limit Used
(as of June 30th)
100%
90% a
90%
90% 82%
80% 79% 79%
° 74%
70%
70% o
69%
60% 66%
63% 62%
50% 5�°!0
51%
40% �
41%
30% 37%
� 31%
27%
20%
20%
10% � � � �
FY 15 FY 16 FY 17 FY 18 FY 19 FY 20 FY 21 FY 22 FY 23 FY 24 FY 25 FY 26 FY 27 FY 28
tFvl9Adopted tFV16Adopted
c. The following chart demonstrates that the relative position pertaining to
use of the statutory debt limit of the City of Dubuque for Fiscal Year 2020
(based on the Fiscal Year 2019 budget process) to the other cities in lowa
for Fiscal Year 2018 with a population over 50,000:
Legal Debt Limit Comparison for Eleven Largest lowa Cities
Amount of Debt Percentage of
Against 5% Legal legal debt limit
Rank City Debt Limit utilized
11 Des Moines $416,130,930 73.03%
10 Sioux City $144,100,000 67.47%
9 Davenport $211,165,000 63.87%
8 Waterloo $108,225,490 56.54%
7 Cedar Rapids $271,585,000 52.43%
6 Ankeny $126,830,000 51.65%
5 W. Des Moines $184,720,000 51.39%
4 Dubuque (FY20) $115,141,469 50.96%
3 Ames $65,480,000 31.30%
2 Council Bluffs $68,725,096 28.40%
1 lowa City $66,945,000 24.37%
Average w/o Dubuque $166,390,652 50.04%
6
In March 2018, the projected use of the statutory debt limit as of June
30, 2019, was 56.40%, which remains unchanged. The projection for FY
2020 is 50.96%. Of the eleven cities in lowa with a population more than
50,000, Dubuque will have the fourth lowest use of statutory debt limit.
The highest city (Des Moines) is 43.3% higher than Dubuque and the
average of the other ten cities 1.8% lower than Dubuque.
d. The total amount of debt for the City of Dubuque by the end of the FY
2019 Five Year Capital Improvement Program (CIP) budget would be
$219.6 million (37% of the statutory debt limit) and the projection is to be
at $136.6 million (20% of statutory debt limit) within 10 years.
Total Debt
„ �3091 (In Millions)
o $310 I
� s2so.�
$290 . .
$270 ' $281.3 .� � � $267.4
$271.8 $255.9
$286.3 $265.0
$250 - . .
$253.0
$230 - 2262
$290 221.6
$207.3
$190
;iso.�
$170
$172.8
$150
$154.8
$130 .. , . . : , . -� �S..GS,
FY 15 �FY 16 FY 17 FY 78 FY 1�3 FY 20 FY 27 FY 22 FY 23 FY 24 FY 25 FY 26 FY 27 FY28
�fY19Adopted +FY164dopted
e. After all planned expenditures plus an additional $1,050,000 added to the fund
balance in FY 2019, the City of Dubuque will have a general fund reserve of
19.76 percent of general fund expenses as computed by the methodology
adopted in the City's general fund reserve policy or 22.02 percent of general fund
revenues as computed by the methodology used by Moody's Investors Service.
The general fund reserve cash balance is projected to be $11,384,325 on June
30, 2019. The City of Dubuque will increase the General Fund working balance
or operating reserve by a minimum of$1,000,000 in FY 2020. In subsequent
years, the City should add to the operating reserve until 20% is maintained
consistently. In Fiscal Year 2017, the City had projected reaching this consistent
and sustainable 20% reserve level in Fiscal Year 2022. Now this projection is this
level will be reached in Fiscal Year 2019, three years ahead of schedule.
7
General Fund Reserve Projections:
� � � � � � � �
Contribution $600,000 $1,050,000 $1,050,000 $1,000,000 $100,000 $100,000 $100,000
City's Spendable
General Fund Cash
Reserve Fund $14,172,661 $16,460,491 $15,485,326 $16,185,326 $16,285,326 $16,385,326 $16,485,326
Balance
% of Projected
Revenue (Moody's) 20.09% 23.81% 22.02% 22.86% 22.93% 23.46% 22.92%
6. Health Insurance
The City portion of health insurance expense is projected to decrease from
$1 ,193 per month per contract to $903 per month per contract (based on 572
contracts) in FY 2020 (general fund savings of$1 ,218,758). The City of Dubuque
is self-insured, and actual expenses are paid each year with the City only having
stop-loss coverage for major claims. In FY 2017, The City went out for bid for
third party administrator and the estimated savings has resulted from the new
contract and actual claims paid. During FY 2019, the City went out for bid for
third party administrator for the prescription drug plan and there will be savings
resulting from the bid award. Estimates for FY 21-24 have been increased by
5.62 percent per year.
In September and October 2018, the City of Dubuque launched a new interactive
budget simulation tool called Balancing Act. The online simulation invites community
members to submit their own version of a balanced budget under the same constraints
faced by City Council, respond to high-priority budget input questions, and leave
comments. The Budget Office conducted community outreach with the new tool via print
and digital marketing and presentations to the Institute of Managerial Accountants, Point
Neighborhood Association, Young Professionals, Community Development Advisory
Commission, Downtown Neighborhood, and at City Expo.
In November 2018, City staff hosted an evening public budget input meeting at the City
Council Chambers in the Historic Federal Building. The Budget Office conducted
community outreach with the new budget simulator tool to the Kiwanis Club and North
End Neighborhood Association.
In December 2018, City staff presented the new budget simulation tool at the December
3, 2018 City Council meeting and hosted a Budget Simulator Workshop at the
Carnegie-Stout Public Library in the Aigler Auditorium on December 8, 2018.
A total of 321 community members attended the budget presentations. There have
been 870 page views of the Balancing Act budget simulator tool and 125 budgets have
been submitted by the public as of December 10, 2018. The input provided will be
8
analyzed by City staff and evaluated by the City Manager for inclusion in the Fiscal Year
2020 budget recommendation as deemed appropriate.
During Fiscal Year 2016, the City launched a web based open data platform which can
be found at www.dollarsandcents.cityofdubuque.org. The City of Dubuque's Open
Budget application provides an opportunity for the public to explore and visually interact
with Dubuque's operating and capital budgets. This application is in support of the five-
year organizational goal of a financially responsible city government and high-
performance organization and allows users with and without budget data experience, to
better understand expenditures in these categories.
During Fiscal Year 2017, an additional module was added to the open data platform
which included an interactive checkbook which will allow citizens to view the City's
payments to vendors. The final step will be adding performance measures to the open
data platform to allow citizens to view outcomes of the services provided by the City.
There will be six City Council special meetings prior to the adoption of the FY 2020
budget before the state mandated deadline of March 15, 2019.
I concur with the recommendation and respectfully request Mayor and City Council
approval.
1��'�'r�f� ��
Michael C. Van Milligen
MCVM:jml
Attachment
cc: Crenna Brumwell, City Attorney
Cori Burbach, Assistant City Manager
Teri Goodmann, Assistant City Manager
Jennifer Larson, Budget Director
9
Dubuque
THE CITY OF
U� � All-America City
1 /
Masterpiece on the Mississippi �
200�•zolz•zois•zoi�
TO: Michael C. Van Milligen, City Manager
FROM: Jennifer Larson, Budget Director
SUBJECT: Budget and Fiscal Policy Guidelines for Fiscal Year 2020
DATE: December 12, 2018
I am recommending adoption of the Fiscal Year 2020 Budget Policy Guidelines. The
guidelines reflect City Council direction given as part of the goal setting sessions.
The budget guidelines are developed and adopted by City Council during the budgeting
process in order to provide targets or parameters within which the budget
recommendation will be formulated within the context of the City Council Goals and
Priorities established in August 2018. The final budget presented by the City Manager
may not meet all of these targets due to changing conditions and updated information
during budget preparation, for example, the final property assessed valuations are not
available until January 2019. To the extent the recommended budget varies from the
guidelines, an explanation will be provided in the printed budget document. By State
law, the budget that begins July 1 , 2019 must be adopted by March 15, 2019.
The Fiscal Year 2020 budget guidelines call for a 0.97% reduction in the property tax
rate, which would be no property tax increase for the average Dubuque homeowner and
a property tax decrease for commercial (-0.59%, -$19.42), industrial (-0.72%, -$34.88)
and multi-residential (-5.69%, -$106.36) properties. Since 1989, the average
homeowner has averaged an annual increase in costs in the City portion of their
property taxes of 1 .35%, or about $8.06 a year. If the State had been fully funding the
Homestead Tax Credit, the increase would have averaged about $4.97 a year.
These guidelines include $697,351 for recurring and $478,777 for non-recurring
improvement packages.
Significant issues impacting the FY 2020 budget include the following:
1. State Funded Backfill on Commercial and Industrial Property Tax
a. Elements of the property tax reform passed by the lowa Legislature in
2013 have created a tremendous amount of uncertainty in the budget
process. While the State has committed to provide some funding for the
City revenue reductions caused by the decrease in taxable value for
commercial and industrial properties, key legislators have been quoted in
the media as casting doubt on the reimbursements continuing. It is
assumed the backfill will be fully funded in FY 2020, then beginning
in FY 2021, it is assumed that the State will eliminate the backfill over
a five-year period.
The projected reduction of State backfill revenue to the general fund is as
follows:
� .
2020 $0
2021 -$206,540
2022 -$206,540
2023 -$206,540
2024 -$206,540
2025 -$206,540
Total -$1 ,032,700
2. Gaming Revenue Reduction.
a. Gaming revenues generated from lease payments from the Dubuque
Racing Association (DRA) are estimated to increase $85,928 from
$4,901 ,176 in FY 2019 to $4,987,104 in FY 2020 based on revised
projections from the DRA. This follows a $45,165 increase from budget in
FY 2019 and a $159,046 decrease from budget in FY 2018.
b. The Fiscal Year 2020 projections are based on five months of actual
experience and gross gaming revenues are up 4.7°k. In Calendar Year
2018, gross gaming revenues at the Q Casino is up 4°k and the Diamond
Jo is up 1 °k. Overall, the Dubuque gaming market is up 2.2°k for Calendar
Year 2018. Q Casino's increase is due to the hotel renovation, new
restaurant (Farmhouse), and new gaming product and entertainment mix.
The DRA has projected a 1°k increase in gross gaming revenue for
Calendar Year 2019.
c. The State of Illinois passed a Video Gaming Act on July 13, 2009 that
legalized the use of Video Gaming Terminals in liquor licensed
establishments including bars, restaurants, truck stops and certain
fraternal and veterans' organizations. In the part of Illinois that affects the
Dubuque market, the first year of operation of video gaming terminals
generated $1 million in revenue monthly. The use of video gaming
terminals has now grown to $9.4 million monthly for the five counties
closest to Dubuque and in a direct line with Rockford, IL, which has
limited revenue to the gaming market in Dubuque. The Q Casino and
Diamond Jo Casino average monthly revenue is $10.8 million. The
number VGT machines have increase by 84°k since 2013. The five
counties in Illinois had 1037 machines in 2013 and currently have 1906
machines. Currently, Q Casino has 833 Slot Machines and Diamond Jo
has 916 for a total of 1 ,749 or 9°k less. This is a similar impact of
building approximately two more casinos halTway between Dubuque
2
and Rockford. The revised DRA gaming projections include minimal
growth in revenues over the next five years with a growth rate of 1°k in FY
2020 and FY 2021 and a growth rate of 0°k in FY 2022 and beyond.
3. New multi-residential property class in Fiscal Year 2017.
a. Beginning in FY 2017 (July 1 , 2016), new State legislation created a new
property tax classification for rental properties called multi-residential,
which requires a rollback, or assessment limitations order, on multi-
residential property which will eventually equal the residential rollback.
Multi-residential property includes apartments with 3 or more units.
Rental properties of 2 units were already classified as residential
property. The State of lowa will not backfill property tax loss from the
rollback on multi-residential property.
- . � . � . .
FY 2017 86.25°k $ 331 ,239
FY 2018 82.50°k $ 472,127
FY 2019 78.75°k $ 576,503
FY 2020 75.00°k $ 696,046
FY 2021 71 .25°k $ 614,319
FY 2022 67.50°k $ 952,466
FY 2023 63.75°k $ 1 ,018,664
FY2024 55.63°k $ 1 ,187,123
Total $5,848,487
This annual loss in tax revenue of$696,046 in FY 2020 and
$1,187,123 from multi-residential property when fully implemented in
FY 2024 will not be backfilled by the State. From Fiscal Year 2017
through Fiscal Year 2024 the City will lose $5,848,487 in total, meaning
landlords will have paid that much less in property taxes. The state did
not require landlords to charge lower rents or to make additional
investment in their property.
4. Fiscal Year 2020.
a. The hiring freeze ended during Fiscal Year 2019 with most of the positions
funded only a partial fiscal year in FY 2019, the additional new costs in
Fiscal Year 2020 are as follows:
FY 2020
De artment Position Cost FTE
Human Rights Full-time Community $40,886 1 .00
En a ement Coordinator
Human Rights Full-time TrainingM/orkforce $40,886 1 .00
Develo ment
Park Full-time Assistant $40,189 1 .00
Horticulturalist
3
FY 2020
De artment Position Cost FTE
Park/Public Works Full-time Assistant $40,189 1 .00
Horticulturalist
Park Full-time Maintenance Worker $54,140 1 .00
City Manager's Part-time Management Intern $16,806 0.60
Office ICMA
City Manager's Full-time Secretary $30,124 1 .00
Office
Information Full-time Help Desk Technical $31 ,858 1 .00
Services Su ort
Engineering Full-time Traffic Engineering $58,055 1 .00
Assistant
Police Full-time Records Clerk $29,337 1 .00
Total Additional FY 2020 Cost $382,470 9.60
5. Debt Reduction
a. Outstanding G.O. debt (including tax increment debt, economic
development projects TIF rebates remaining payments and general fund
lease agreement) on June 30, 2019 will be $129,940,743 (56.40°k of the
statutory debt limit) leaving an available debt capacity of$96,572,012
(43.60°k). In FY 2018 the City was at 63.42°k of statutory debt limit, so
56.40°k in FY 2019 is a 7.02 percent decrease in use of the statutory debt
limit.
The City also has debt that is not subject to the statutory debt limit. This
debt includes revenue bonds. Outstanding revenue bonds payable by
water, sewer and stormwater fees on June 30, 2019 will have a balance
of $141 ,390,905. The total City indebtedness as of June 30, 2019, is
projected to be $266,331 ,648. The total City indebtedness as of June
30, 2018, was $271,788,100. In FY 2019, the City will have a projected
$5,456,452 (-2.0%) less in debt.
The Fiscal Year 2020 review of Capital Improvement Budget
requests is not yet complete, so there are no revised Fiscal Year
2020 debt projections as of yet. In addition, these debt projections
do not include any general obligation debt for the Five Flags
Renovation.
Some highlights of the document are:
Sales tax funds are set by resolution to be used 50 percent in the General Fund
for property tax relief in FY 2020. Sales tax receipts are projected to increase 2.8
percent over FY 2019 budget (+$123,514) and 1 .00 percent over FY 2019 actual
of$4,440,884 based on FY 2019 revised revenue estimate of$4,440,884 which
includes a reconciliation payment from the State of lowa of$217,699 received in
November 2018, increased 1 .0 percent to calculate the FY 2020 budget, and
then increased at an annual rate of 1 .0 percent per year beginning in FY 2021 .
4
The estimates received from the State of lowa show a 4.35°k decrease in the first
two payments estimated for FY 2020 as compared to the first two payments
budgeted for FY 2019.
Building fees (Building Permits, Electrical Permits, Mechanical Permits and
Plumbing Permits) are anticipated to increase $30,918 from $629,547 in FY 2019
to $660,465 in FY 2020 based on Fiscal Year 2019 building activity to-date.
Natural Gas franchise fees have been projected to increase 5.5 percent over
FY18 actual of$1 ,147,459 based on the projected growth. Also, Electric
franchise fees have been projected to increase 5.5 percent over FY18 actual of
$3,398,709 based on the projected growth. The franchise fee revenues are
projected to increase at an annual rate of 4 percent per year from FY 2021 thru
FY 2024.
The split of gaming revenues from taxes and the DRA lease (not distributions) in
FY 2020 is recommended to remain at a split of gaming taxes and rents between
operating and capital budgets of 96 percent operating and 4 percent capital.
When practical in future years, additional revenues will be moved to the capital
budget from the operating budget.
The Municipal Fire and Police Retirement System of lowa Board of Trustees City
contribution for Police and Fire retirement decreased from 26.02 percent in FY
2019 to 24.41 percent in FY 2020 (general fund savings of$162,007). Also, the
lowa Public Employee Retirement System (IPERS) City contribution is
unchanged from the FY2019 contribution rate of 9.44 percent (no general fund
impact). The IPERS employee contribution is also unchanged from the FY 2019
contribution rate of 6.29°k (which does not affect the City's portion of the budget).
The IPERS rate is anticipated to increase 1 percent each succeeding year.
Consistent with the already approved collective bargaining agreements for
Teamsters Local Union 120, Teamsters Local Union 120 Bus Operators,
Dubuque Professional Firefighters Association, and International Union of
Operating Engineers, in FY 2020 there is a 1 .5°k employee wage increase for
represented and non-represented employees at a cost of$550,635 to the
General Fund.
The City portion of health insurance expense is projected to decrease from
$1 ,193 per month per contract to $903 per month per contract (based on 572
contracts) in FY 2020 (general fund savings of$1 ,218,758). The City of Dubuque
is self-insured, and actual expenses are paid each year with the City only having
stop-loss coverage for major claims. In FY 2017, The City went out for bid for
third party administrator and the estimated savings has resulted from the new
contract and actual claims paid. In addition, firefighters began paying an
increased employee health care premium sharing from 10°k to 15°k and there
was a 7°k increase in the premium on July 1 , 2018. During FY 2019, the City
went out for bid for third party administrator for the prescription drug plan and
there will be savings resulting from the bid award. Estimates for FY 21-24 have
been increased by 5.62 percent per year.
5
Electrical energy expense is estimated to have a 1°k increase over FY 2018
actual expense, then 2°k per year beyond.
Natural gas expense is estimated to have no increase over FY 2018 actual
expense, then 2°k per year beyond.
Motor vehicle fuel is estimated to increase 7°k over FY 2019 budget (+$158,173),
then increase 2.0°k per year beyond.
The decrease in property tax support for Transit from FY 2019 to FY 2020 is
$20,512, which reflects decreased expense for health insurance ($28,982);
decrease in workers compensation ($20,514); decrease in electrical utility
($17,616);increase in motor vehicle maintenance and diesel fuel ($65,800);
decrease in machinery and equipment ($212,299) and decreased FTA operating
revenue ($148,416).
The following is a ten-year history of the Transit subsidy:
� . � -
2020 Pro�ection $1 ,550,795 -1 .31 °k
2019 Bud et $1 ,571 ,307 -0.10°k
2018Actual $1 ,572,825 34.10°k
2017 Actual $1 ,172,885 24.41 °k
2016 Actual $942,752 -13.20°k
2015Actual $1 ,086,080 30.33°k
2014 Actual $833,302 -20.19°k
2013 Actual $1 ,044,171 45.51 °k
2012 Actual $717,611 -33.48°k
2011 Actual $1 ,078,726 -7.12°k
2010Actual $1 ,161 ,393 -7.36°k
2009Actual $1 ,253,638 +17.2°k
The Enterprise Funds have contributed to the administrative overhead of the City
operation, but the General Fund has always carried most of the financial burden.
In FY 2013, a multi-year process to more equitably distribute those costs across
all funds was implemented. The remaining overhead recharge will be increased
each year until reaching the total overhead recharge percentage. In FY 2018, the
administrative overhead calculation administrative overhead formula was
modified. The modification removed Neighborhood Development, Economic
Development and Workforce Development from all recharges to utility funds. In
addition, the Landfill calculation was modified to remove GIS and Planning.
There was a reduction in metered water usage in FY 2014 and water and sewer
revenue bond covenants calculated on the accrual basis of accounting that have
required a reduction in both the water and sewer administrative overhead
recharges in FY 2016 and 2017. The sanitary sewer administrative overhead was
partially reinstated in FY 2017 and fully reinstated in FY 2018. The Water
administrative overhead was partially reinstated in FY 2018 and in FY 2020 is
21 .67 percent of full implementation.
6
In September and October 2018, the City of Dubuque launched a new interactive
budget simulation tool called Balancing Act. The online simulation invites community
members to submit their own version of a balanced budget under the same constraints
faced by City Council, respond to high-priority budget input questions, and leave
comments. The Budget Office conducted community outreach with the new tool via print
and digital marketing and presentations to the Institute of Managerial Accountants, Point
Neighborhood Association, Young Professionals, Community Development Advisory
Commission, Downtown Neighborhood, and at City Expo.
In November 2018, City staff hosted an evening public budget input meeting at the City
Council Chambers in the Historic Federal Building. The Budget Office conducted
community outreach with the new budget simulator tool to the Kiwanis Club and North
End Neighborhood Association.
In December 2018, City staff presented the new budget simulation tool at the December
3, 2018 City Council meeting and hosted a Budget Simulator Workshop at the
Carnegie-Stout Public Library in the Aigler Auditorium on December 8, 2018.
A total of 321 community members attended the budget presentations. There have
been 870 page views of the Balancing Act budget simulator tool and 125 budgets have
been submitted by the public as of December 10, 2018. The input provided will be
analyzed by City staff and evaluated by the City Manager for inclusion in the Fiscal Year
2020 budget recommendation as deemed appropriate.
During Fiscal Year 2016, the City launched a web based open data platform which can
be found at www.dollarsandcents.cityofdubuque.org. The City of Dubuque's Open
Budget application provides an opportunity for the public to explore and visually interact
with Dubuque's operating and capital budgets. This application is in support of the five-
year organizational goal of a financially responsible city government and high-
performance organization and allows users with and without budget data experience, to
better understand expenditures in these categories.
During Fiscal Year 2017, an additional module was added to the open data platform
which included an interactive checkbook which will allow citizens to view the City's
payments to vendors. The final step will be adding performance measures to the open
data platform to allow citizens to view outcomes of the services provided by the City.
There will be six City Council special meetings prior to the adoption of the FY 2020
budget before the state mandated deadline of March 15, 2019.
JML
Attachment
cc: Crenna Brumwell, City Attorney
Cori Burbach, Assistant City Manager
Teri Goodmann, Assistant City Manager
7
� . T . , .-. � � . , r. . . .-� . . �
BU DGET & FISCAL POLICY GUI DELI N ES
FISCAL YEAR 2020
THE CITY OF
UB E
Masterpiece on the Mississippi
FY 2020 Budget and Fiscal Policy Guidelines
Page 1
Operating Budget Guidelines
The Policy Guidelines are developed and adopted by City Council during the budgeting
process to provide targets or parameters within which the budget recommendation will be
formulated, in the context of the City Council Goals and Priorities established in August 2018.
The final budget presented by the City Manager may not meet all these targets due to
changing conditions and updated information during budget preparation. To the extent the
recommended budget varies from the guidelines, an explanation will be provided in the
printed budget document. By State law, the budget that begins July 1 , 2019 must be adopted
by March 15, 2019.
A. CITIZEN PARTICIPATION
GUIDELINE
To encourage citizen participation in the budget process, City Council will hold multiple
special meetings in addition to the budget public hearing for the purpose of reviewing
the budget recommendations for each City department and requesting public input
following each departmental review.
The budget will be prepared in such a way as to maximize its understanding by
citizens. Copies of the recommended budget documents will be accessed via the
following:
o The City Clerk's office, located in City Hall (printed)
o The government documents section at the Carnegie Stout Public Library
(printed)
o On the City's website at www.cityofdubuque.orq (digital)
o CD copy of the budget on CD, available upon request (digital)
Opportunities are provided for citizen input prior to formulation of the City Manager's
recommended budget and will be provided again prior to final Council adoption, both
at City Council budget special meetings and at the required budget public hearing.
Timeline of Public Input Opportunities
O September - October 2018 During September 2018, the City of Dubuque
� launched a new interactive budget simulation tool called Balancinq Act. The
� online simulation invites community members to submit their own version of a
� balanced budget under the same constraints faced by City Council, respond to
� high-priority budget input questions, and leave comments. The Budget Office
conducted community outreach with the new tool via print and digital marketing
� and presentations to Institute of Managerial Accountants, Point Neighborhood
� Association, Young Professionals, Community Development Advisory
I Commission, Downtown Neighborhood, and at City Expo.
I
Q November 2018 City staff hosted an evening public budget input meeting at the
. City Council Chambers in the Historic Federal Building. The Budget Office
conducted community outreach with the new budget simulator tool to Kiwanis
Club and North End Neighborhood Association.
FY 2020 Budget and Fiscal Policy Guidelines
Page 2
O December 2018 City staff presented the new budget simulation tool at the
December 3, 2018 City Council meeting and hosted a Budget Simulator
Workshop at the Carnegie-Stout Public Library at Aigler Auditorium on
December 8, 2018.
A total of 321 community members attended the budget presentations. There
have been 870 page views of the Balancing Act budget simulator tool and 125
budgets have been submitted by the public as of December 9, 2018. The input
provided will be analyzed by City staff and evaluated by the City Manager for
inclusion in the Fiscal Year 2020 budget recommendation as deemed
appropriate.
Open Budget
� idcents.citvofdubuque.orq
During Fiscal Year 2016, the City launched a web based open data platform. The City
of Dubuque's Open Budget application provides an opportunity for the public to
explore and visually interact with Dubuque's operating and capital budgets. This
application is in support of the five-year organizational goal of a financially responsible
city government and high-performance organization and allows users with and without
budget data experience, to better understand expenditures in these categories.
During Fiscal Year 2017, an additional module was added to the open data platform
which included an interactive checkbook which will allow citizens to view the City's
payments to vendors. The final step will be adding performance measures to the open
data platform to allow citizens to view outcomes of the services provided by the City.
Taxpayer Receipt
I IDI � h##v.�//rliihivviie �h�i�.,..�.,..�..+ ......,iann�n e�+�..,�+e.� +�.,r�.,e. .e..e�r+
During Fiscal Year 2019, the City launched an online application which allows users to
generate an estimate of how their tax dollars are spent. The tool uses data inputted by
the user such as income, age, taxable value of home, and percentage of goods
purchased with City limits. The resulting customized receipt demonstrates an estimate
of how much in City taxes the user contributes to Police, Fire, Library, Parks, and other
city services. This tool is in support of the City Council goal of a financially responsible
and high-performance organization and addresses a Council-identified outcome of
providing opportunities for residents to engage in City governance and enhance
transparency of City decision-making.
B. SERVICE OBJECTIVES AND SERVICE LEVELS
GUIDELINE
The budget will identify specific objectives to be accomplished during the budget year,
July 1 through June 30, for each activity of the City government. The objectives serve
as a commitment to the citizens from the City Council and City organization and
identify the level of service which the citizen can anticipate.
FY 2020 Budget and Fiscal Policy Guidelines
Page 3
C. � TWO TYPES OF BUDGET DOCUMENTS TO BE PREPARED
'JIDELINE
Two types of budget documents will be prepared for public dissemination. The
recommended City operating budget for Fiscal Year 2020 will consist of a
Recommended City Council Policy Budget that is a collection of information that has
been prepared for department hearings and a Residents Guide to the Recommended
FY 2020 Budget. These documents will be available in early February.
Recommended City Council Policy Budget The purpose of this documents is to
focus attention on policy decisions involving what services the City government will
provide, who will pay for them, and the implications of such decisions. The document
will emphasize objectives, accomplishments and associated costs for the budget being
recommended by the City Manager.
The Recommended City Council Policy Budget will include the following information
for each department:
o Highlights of prior year's accomplishments and Future Year's Initiatives
2 o a financial summary
o a summary of improvement packages requested and recommended
o significant line items
o capital improvement projects in the current year and those recommended over
the next five years
0 organizational chart for larger departments and major goals, objectives and
performance measures for each cost center within that department
o line item expense and revenue financial summaries.
The Residents Guide This section of the Recommended FY 2020 Budget will be a
supplementary composite of tables, financial summaries and explanations. It will
include the operating and capital budget transmittal messages and the adopted City
Council Budget Policy Guidelines. Through graphs, charts and tables it presents
financial summaries which provide an overview of the total operating and capital
budgets.
D. ADOPT A BALANCED BUDGET
GUIDELINE
The City will adopt a balanced budget in which expenditures will not be allowed to
exceed reasonable estimated resources. The City will pay for all current expenditures
with current revenues.
E. BALANCE BETWEEN SERVICES AND TAX BURDEN
GUIDELINE
The budget should reflect a balance between services provided and the burden of
paying taxes and/or fees for those services. It is not possible or desirable for the City
to provide all the services requested by individual citizens. The City must consider the
ability of citizens to pay for services in setting service levels and priorities.
FY 2020 Budget and Fiscal Policy Guidelines
Page 4
F. MAINTENANCE EXISTING LEVEL OF SERVICE
GUIDELINE
To the extent possible with the financial resources available, the City should attempt to
maintain the existing level of services. As often as reasonably possible, each service
should be tested against the following questions:
(a) Is this service truly necessary?
(b) Should the City provide it?
(c) What level of service should be provided?
(d) Is there a better, less costly way to provide it?
(e) What is its priority compared to other services?
(� What is the level of demand for the service?
(g) Should this service be supported by property tax, user fees, or a combination?
G. IMPROVE PRODUCTIVITY
GUIDELINE
Continue efforts to stretch the value of each tax dollar and maximize the level of City
services purchased with tax dollars through continual improvements in efficiency and
effectiveness. Developing innovative and imaginative approaches for old tasks,
reducing duplication of service effort, creative application of new technologies, and
more effective organizational arrangements are approaches to this challenge.
H. USE OF VOLUNTEERS
DISCUSSION
To respect citizens who must pay taxes, the City must seek to expand resources and
supplement service-delivery capacity by continuing to increase direct citizen involvement with
service delivery. Citizens are encouraged to assume tasks previously performed or provided
by City government. This may require the City to change and expand the approach to service
delivery by providing organizational skills and training and coordinating staff, office space,
meeting space, equipment, supplies and materials -- rather than directly providing more
expensive full-time City staff. Activities in which citizens can continue to take an active role
include: Library, Recreation, Parks, Five Flags Center, and Police.
GUIDELINE
Future maintenance of City service levels may depend partially or largely on volunteer
citizen staffs. Efforts shall continue to identify and implement areas of City government
where (a) volunteers can be utilized to supplement City employees to maintain service
levels (i.e., Library, Recreation, Parks, Police) or (b) service delivery can be adopted
by to non-government groups and sponsors -- usually with some corresponding
financial support.
FY 2020 Budget and Fiscal Policy Guidelines
Page 5
I. RESTRICTIONS ON INITIATING NEW SERVICE
GUIDELINE
New service shall only be considered: (a) when additional revenue or offsetting
reduction in expenditures is proposed; or (b) when mandated by state or federal law.
J. SALARY INCREASES OVER THE AMOUNT BUDGETED SHALL BE
FINANCED FROM BUDGET REDUCTIONS IN THE DEPARTMENT(S) OF THE
BENEFITING EMPLOYEES
DISCUSSION
The recommended budget includes salary amounts for all City employees. However,
experience shows that budgeted amounts are often exceeded by fact finder and/or arbitrator
awards. Such "neutrals" do not consider the overall financial capabilities and needs of the
community and the fact that the budget is carefully balanced and fragile. Such awards have
caused overdrawn budgets, deferral of necessary budgeted expenditures, expenditure of
working balances and reserves, and have generally reduced the financial condition or health
of the City government. To protect the financial integrity of the City government, it is
recommended the cost of any salary adjustment over the amount financed in the budget is
paid for by reductions in the budget of the department(s) of the benefiting employees.
The City has five collective bargaining agreements. The current contracts expire as follows:
� . � . �
Teamsters Local Union No. 120 June 30, 2022
Teamsters Local Union No. 120 Bus Operators June 30, 2022
Dubuque Professional Firefighters Association June 30, 2022
Dubuque Police Protective Association June 30, 2018
International Union of Operating Engineers June 30, 2022
GUIDELINE
Salary increases over the amount budgeted for salaries shall be financed from
operating budget reductions in the department(s) of the benefiting employees.
K. THE AFFORDABLE CARE ACT
GUIDELINE
The Affordable Care Act is a health care law that aims to improve the current health
care system by increasing access to health coverage for Americans and introducing
new protections for people who have health insurance. The Affordable Care Act (ACA)
was signed into law on March 23, 2010.
FY 2020 Budget and Fiscal Policy Guidelines
Page 6
Under the ACA, employers with more than 50 full-time equivalent employees must
provide affordable "minimum essential coverage" to full-time equivalent employees.
The definition of a full-time equivalent employee under the Affordable Care Act is any
employee that works 30 hours per week or more on average over a twelve-month
period (1 ,660 hours or more). There is a twelve-month monitoring period for part-time
employees. If a part-time employee meets or exceeds 30 hours per week on average
during that twelve-month period, the City must provide health insurance.
On July 2, 2013, the Treasury Department announced that it postponed the employer
shared responsibility mandate for one year. Based on the initial requirements of the
Affordable Health Care Act, the Fiscal Year 2014 budget provided for insurance
coverage effective February 1 , 2014 for several part-time employees. In addition, the
Fiscal Year 2014 budget provided for making several part-time positions full-time on
June 1 , 2014.
Due to the delay of the employer shared responsibility mandate for the Affordable
Health Care Act, the City delayed providing insurance coverage for eligible part-time
employees and delayed making eligible part-time positions full-time until January 1 ,
2015.The Standard Measurement Period was delayed from January 1 , 2013 through
December 31 , 2013 to December 1 , 2013 through November 30, 2014 with the first
provision of health insurance date being January 1 , 2015.
The impact of the Affordable Care Act on the City of Dubuque included changing nine
part-time positions to full-time (Bus Operators (4), Police Clerk Typist (1), Building
Services Custodians (3), and Finance Cashier (1) in Fiscal Year 2016. In addition, nine
part-time positions were offered health insurance benefits due to working more
than1 ,560 hours (Bus Operators (4), Golf Professional, Assistant Golf Professional,
Golf Maintenance Worker, Parks Maintenance Worker , and Water Meter Service
Worker). The number of these part-time positions with health insurance benefits has
been reduced as employees in these positions accept other positions or leave
employment with the City of Dubuque. As of December 7, 2018, there are four part-
time positions with health insurance benefits that remain which include the Golf
Professional, Assistant Golf Professional, Parks Maintenance Worker, and Water
Meter Service Worker.
FY 2020 Budget and Fiscal Policy Guidelines
Page 7
L. HIRING FREEZE
GUIDELINE
The hiring freeze ended during Fiscal Year 2019 with most of the positions funded only
a partial fiscal year in FY 2019, the additional new costs in Fiscal Year 2020 are as
follows:
FY 2020
De artment Position Cost FTE
Human Rights Full-time Community $40,886 1 .00
En a ement Coordinator
Human Rights Full-time TrainingM/orkforce $40,886 1 .00
Develo ment
Park Full-time Assistant $40,189 1 .00
Horticulturalist
Park/Public Works Full-time Assistant $40,189 1 .00
Horticulturalist
Park Full-time Maintenance Worker $54,140 1 .00
City Manager's Part-time Management Intern $16,806 0.60
Office ICMA
City Manager's Full-time Secretary $30,124 1 .00
Office
Information Full-time Help Desk Technical $31 ,858 1 .00
Services Su ort
Engineering Full-time Traffic Engineering $58,055 1 .00
Assistant
Police Full-time Records Clerk $29,337 1 .00
Total Additional FY 2020 Cost $382,470 9.60
M. BALANCE BETWEEN CAPITAL AND OPERATING EXPENDITURES
GUIDELINE
The provision of City services in the most economical and effective manner requires a
balance between capital (with emphasis upon replacement of equipment and capital
projects involving maintenance and reconstruction) and operating expenditures. This
balance should be reflected in the budget each year.
N. USER CHARGES
DISCUSSION
User charges or fees represent a significant portion of the income generated to support the
operating budget. It is the policy that user charges or fees be established when possible so
those who benefit from a service or activity also help pay for it. Municipal utility funds have
been established for certain activities, which are intended to be self-supporting. Examples of
utility funds include Water User Fund, Sewer User Fund, Stormwater User Fund, Refuse
Collection Fund, and Parking Fund. In other cases, a user charge is established after the
FY 2020 Budget and Fiscal Policy Guidelines
Page 8
Council determines the extent to which an activity must be self-supporting. Examples of this
arrangement are fees for swimming, golf, recreation programs, and certain inspection
programs such as rental inspections and Building Department licensing.
The Stormwater User Fund is fully funded by stormwater use fees. The General Fund will
continue to provide funding for the stormwater fee subsidies which provide a 50°k subsidy for
the stormwater fee charged to property tax exempt properties and low-to-moderate income
residents and a 75°k subsidy for residential farms.
GUIDELINE
User fees and charges should be established where possible so that those who utilize
or directly benefit from a service, activity or facility also help pay for it.
User fees and charges for each utility fund (Water User Fund, Sewer User Fund,
Stormwater User Fund, Refuse Collection Fund, and Parking Fund) shall be set at a
level that fully supports the total direct and indirect cost of the activity, including the
cost of annual depreciation of capital assets, the administrative overhead to support
the system and financing for future capital improvement projects.
The following chart shows activities with user charges and the percentage the activity
is self-supporting.
- - - . . . .
Activit FY17 Actual FY18 Actual FY19 Ado ted FY20 Recomm'd
Adult Athletics 85.6% 82.6% 74.3% 74.9%
McAleece Concessions 113.9% 130.3% 122.8% 144.2%
Youth Sports 21.3% 24.1% 20.8% 16.9%
Therapeutic & After School 5.4% 6.8% 13.7% 35.0%
Recreation Classes 90.3% 81.1% 75.8% 72.7%
Swimming 59.1% 67.5% 67.6% 68.2%
Golf 98.8% 99.0% 106.1% 100.6%
Port of Dubuque Marina 64.1% 70.8% 84.0% 74.1%
Park Division 16.7% 14.0% 16.2% 17.0%
Libra 5.0% 3.8% 3.5% 3.2%
Air ort 82.2% 84.5% 84.2% 86.5%
Buildin Ins ections 84.3% 94.4% 82.5% 83.3%
Plannin Services 43.3% 44.4% 43.9% 46.7%
Health Food/Environmental
Inspections 57.6% 56.7% 52.6% 71.5%
Animal Control 57.7% 66.4% 61.4% 59.7%
Housing - General Inspection 86.6% 53.7% 88.5% 94.9%
Federal Building
Maintenance 80.2% 85.0% 79.0% 85.1%
FY 2020 Budget and Fiscal Policy Guidelines
Page 9
O. ADMINISTRATIVE OVERHEAD RECHARGES
DISCUSSION
While the Enterprise Funds have contributed to administrative overhead, the majority has
been provided by the General Fund. This is not reasonable and unduly impacts property
taxes, which causes a subsidy to the Enterprise Funds. Prior to FY 2013, the administrative
overhead was charged by computing the operating expense budget for each enterprise fund
and dividing the result by the total City-wide operating expense budget which resulted in the
following percentages of administrative overhead charged to each enterprise fund: Water
5.32°k; Sanitary Sewer 4.84°k; Stormwater 0.55°k; Solid Waste 2.83°k; Parking 1 .71 °k; and
Landfill 2.71 °k. The adopted Fiscal Year 2013 budget changed the administrative overhead to
be more evenly split between the general fund and enterprise funds and is phased in over
many years.
The Fiscal Year 2018 administrative overhead formula was recommended modified. The
modification removed Neighborhood Development, Economic Development and Workforce
Development from all recharges to utility funds. In addition, the Landfill calculation is modified
to remove GIS and Planning.
In Fiscal Year 2020, the general fund is recommended to support $3,401 ,634 in
administrative overhead using the recharge method adopted in Fiscal Year 2013 and revised
in Fiscal Year 2018.
GUIDELINE
Beginning in FY 2013, additional overhead recharges to the utility funds is being
phased in over several years. Engineering administrative and project management
expenses that are not recharged to capital projects will be split evenly between the
Water, Sewer, Stormwater and General Funds. Finance accounting expenses and all
other administrative departments such as Planning, City Clerk, Legal Services and
City Manager's Office will be split evenly between Water, Sewer, Stormwater, Refuse
Collection and General Funds, with overhead costs being shared by the Landfill and
Parking. This will be fully implemented over time.
Beginning in Fiscal Year 2018, Neighborhood Development, Economic Development
and Workforce Development expenses will not be recharged to utility funds. In
addition, the Landfill will not be recharged GIS and Planning expenses.
When the overhead recharges are fully implemented, the split of the cost of
administrative overhead excluding Engineering will be as follows:
FY 2020 Budget and Fiscal Policy Guidelines
Page 10
Administrative Overhead Split Engineering Administration &
(Not including Engineering) Project Management
■Water ■General
■Sewer Fund
Stormwater � Water
� Refuse
Sewer
Parking
Landfill � � Stormwater
� ■General Fund
v
P. OUTSIDE FUNDING
DISCUSSION
The purpose of this guideline is to establish the policy that the City should aggressively
pursue outside funding to assist in financing its operating and capital budgets. However, the
long-term commitments required for such funding must be carefully evaluated before any
agreements are made. Commitments to assume an ongoing increased level of service or
level of funding once the outside funding ends must be minimized.
GUIDELINE
To minimize the property tax burden, the City of Dubuque will make every effort to
obtain federal, state and private funding to assist in financing its operating and capital
budgets. However, commitments to guarantee a level of service or level of funding
after the outside funding ends shall be minimized. Also, any matching funds required
for capital grants will be identified.
Q. GENERAL FUND OPERATING RESERVE (WORKING BALANCE)
DISCUSSION
An operating reserve or working balance is an amount of cash, which must be carried into a
fiscal year to pay operating costs until tax money, or other anticipated revenue comes in.
Without a working balance, there would not be sufficient cash in the fund to meet its
obligations and money would have to be borrowed. Working balances are not available for
funding a budget; they are required for cash flow (i.e., to be able to pay bills before taxes are
collected).
Moody's Investor Service recommends a factor of 20 percent for "AA" rated cities. In May
2015, Moody's Investors Service downgraded Dubuque's general obligation bond rating from
Aa2 to Aa3 and removed the negative outlook. This followed two bond rating upgrades in
2003 and 2010, and one bond rating downgrade in 2014. In announcing the bond rating
downgrade, Moody's noted that the City's general fund balance/reserve declined.
FY 2020 Budget and Fiscal Policy Guidelines
Page 11
� '
' .- - . - - • • � - • � •
• - - -
FY 2013 21 .08°k
FY 2014 14.87°k Decrease due to lanned ca ital ex enditures of$4.1 m in FY14
FY 2015 14.87°k Unchan ed
FY 2016 �� 520� Increase due to capital projects not expended before the end of
the FY and increase in eneral fund revenue
FY 2017 20 090� Increase due to capital projects not expended before the end of
the FY and additional contributions to eneral fund reserve
FY 2018 23 $� o� Increase due to capital projects not expended before the end of
the FY and additional contributions to eneral fund reserve
FY 2019 22.02°k Decrease due to planned capital expenditures
The City of Dubuque has historically adopted a general fund reserve policy as part of the
Fiscal and Budget Policy Guidelines which are adopted each year as part of the budget
process. During Fiscal Year 2013, the City adopted a formal Fund Reserve Policy. Per the
policy for the General Fund, the City will maintain a minimum fund balance of at least 10
percent of the sum of (a) annual operating expenditures not including interfund transfers in
the General Fund less (b) the amounts levied in the Trust and Agency fund and the Tort
Liability Fund ("Net General Fund Operating CosY'). The City may increase the minimum fund
balance by a portion of any operating surplus above the carryover balance of$200,000 that
remains in the General Fund at the close of each fiscal year. The City shall continue to add to
the General Fund minimum balance when additional funds are available until 20 percent of
Net General Fund Operating Cost is reached.
After all planned expenditures plus an additional $1 ,050,000 added to the fund balance in FY
2019, the City of Dubuque will have a general fund reserve of 19.76 percent of general fund
expenses as computed by the methodology adopted in the City's general fund reserve policy
or 22.02 percent of general fund revenues as computed by the methodology used by
Moody's Investors Service. The general fund reserve cash balance is projected to be
$11 ,384,325 on June 30, 2019.
GUIDELINE
The guideline of the City of Dubuque is to increase the General Fund working balance
or operating reserve by a minimum of$1 ,000,000 in FY 2020. In subsequent years,
the City should add to the operating reserve until 20°k is maintained consistently. In
Fiscal Year 2017, the City had projected reaching this consistent and sustainable 20°k
reserve level in Fiscal Year 2022. Now this projection is this level will be reached in
Fiscal Year 2019, three years ahead of schedule.
FY 2020 Budget and Fiscal Policy Guidelines
Page 12
General Fund Reserve Projections:
� � � � � � � �
Contribution $600,000 $1,050,000 $1,050,000 $1,000,000 $100,000 $100,000 $100,000
City's Spendable
General Fund Cash
Reserve Fund $14,172,661 $16,460,491 $15,485,326 $16,185,326 $16,285,326 $16,385,326 $16,485,326
Balance
% of Projected
Revenue (Moody's) 20.09% 23.81% 22.02% 22.86% 22.93% 23.46% 22.92%
R. USE OF UNANTICIPATED, UNOBLIGATED, NONRECURRING INCOME
DISCUSSION
Occasionally, the City receives income that was not anticipated and was not budgeted. Often,
this money is non-recurring and reflects a one-time occurrence which generated the
unanticipated increase in income.
Non-recurring income must not be spent on recurring expenses. This would result in a
funding shortfall in the following budget year before even starting budget preparation.
However, eligible non-recurring expenditures would include capital improvements and
equipment purchases.
GUIDELINE
INonrecurring un-obligated income shall be spent only for nonrecurring expenses.
Capital improvement projects and major equipment purchases tend to be nonrecurring
expenditures.
S. USE OF "UNENCUMBERED FUND BALANCES"
DISCUSSION
Historically, 100°k of a budget is not spent by the end of the fiscal year and a small
unencumbered balance remains on June 30th. In addition, income sometimes exceeds
revenue estimates or there are cost savings resulting in some unanticipated balances at the
end of the year. These amounts of un-obligated, year-end balances are "carried over" into the
new fiscal year to help finance it.
The FY 2019 General Fund budget, which went into effect July 1 , 2018, anticipated a
"carryover balance" of$200,000 or approximately 2 percent of the General Fund. For
multi-year budget planning purposes, these guidelines assume a carryover balance of
$200,000 in FY 2020 through FY 2024.
FY 2020 Budget and Fiscal Policy Guidelines
Page 13
GUIDELINE
Carryover General Fund balance shall be used to help finance the next fiscal year
budget and reduce the demand for increased taxation. The available carryover
General Fund balance shall be anticipated not to exceed $200,000 for FY 2020 and
beyond through the budget planning period. Any amount over that shall be
programmed in the next budget cycle as part of the capital improvement budgeting
process.
T. PROPERTY TAX DISCUSSION
I. ASSUMPTIONS - RESOURCES
. - � - � .
a. Cash Balance. Unencumbered funds or cash balances of$200,000 will be
available in FY 2020 and each succeeding year to support the operating
budget.
b. Sales Tax Revenue. By resolution, 50°k of sales tax funds must be used in the
General Fund for property tax relief in FY 2020. Sales tax receipts are projected
to increase 2.8 percent over FY 2019 budget (+$123,514) and 1 .00 percent
over FY 2019 actual of$4,440,884 based on FY 2019 revised revenue estimate
of$4,440,884 which includes a reconciliation payment from the State of lowa of
$217,699 received in November 2018, increased 1 .0 percent to calculate the
FY 2020 budget, and then increased at an annual rate of 1 .0 percent per year
beginning in FY 2021 . The estimates received from the State of lowa show a
4.35°k decrease in the first two payments estimated for FY 2020 as compared
to the first two payments budgeted for FY 2019. The following chart shows the
past four years of actual sales tax funds and projected FY 2020 for the General
Fund:
�
i
PY Quarter 4 $818,018 $748,170 $748,108 $732,174 $700,311
Hal
Quarter 1 $1 ,102,922 $1 ,112,755 $1 ,080,294 $1 ,066,816 $1 ,098,820
Quarter2 $1 ,136,167 $1 ,146,296 $1 ,109,978 $1 ,098,596 $1 ,131 ,553
Quarter3 $960,705 $960,626 $939,923 $954,021 $982,642
Quarter 4 Hal $374,085 $374,054 $366,087 $371 ,578 $382,726
Reconciliation $255,657 $103,185 $77,018 $217,699 $190,000
Total $4,647,554 $4,445,085 $4,321 ,408 $4,440,884 $4,486,053
% Chan e +10.10% �.36% -2.78% +2.76% +1.00%
c. Hotel/Motel Tax Revenue. Hotel/motel tax receipts are projected to increase
3.03 percent ($71 ,948) over FY 2019 budget and 7.80 percent over FY 2019 re-
estimated receipts of$2,270,643 based on FY19 being low due to an extremely
FY 2020 Budget and Fiscal Policy Guidelines
Page 14
wet fall and the weather pattern not expected to continue in FY 20, and then
increase at an annual rate of 3 percent per year.
d. FTA Revenue. Federal Transportation Administration (FTA) transit operating
assistance is anticipated to decrease 11 .2 percent or $148,416 from FY 2019
budget based on the revised FY 2019 budget received from the FTA. Federal
operating assistance is now based on a comparison of larger cities which has
resulted in a decrease of funding. Previously the allocation was based on
population and population density.
e. Miscellaneous Revenue. Miscellaneous revenue has been estimated at 2
percent growth per year over budgeted FY 2019.
f. Building Fee Revenue. Building fees (Building Permits, Electrical Permits,
Mechanical Permits and Plumbing Permits) are anticipated to increase $30,918
from $629,547 in FY 2019 to $660,465 in FY 2020 based on Fiscal Year 2019
building activity to-date.
g. DRA Revenue. Gaming revenues generated from lease payments from the
Dubuque Racing Association (DRA) are estimated to increase $85,928 from
$4,901 ,176 in FY 2019 to $4,987,104 in FY 2020 based on revised projections
from the DRA. This follows a $45,165 increase from budget in FY 2019 and a
$159,046 decrease from budget in FY 2018.
The following is a ten-year history of DRA lease payments to the City of
Dubuque:
� �
� �
FY 2020 estimate $4,987,104 +$g5,928 +1 .75°k
FY 2019 revised $4,996,391 +$140,380 +2.89°k
FY 2019 bud et $4,901 ,176 +$45,165 +0.93°k
FY 2018 actual $4,856,011 +$18,879 +0.39°k
FY 2017 actual $4,837,132 -$195,083 -3.88°k
FY 2016 actual $5,032,215 -$155,297 -2.99°k
FY 2015 actual $5,187,512 -$158,104 -2.96°k
FY 2014 actual $5,345,616 -$655,577 -10.92°k
FY 2013 actual $6,001 ,193 +$3,305 +0.06°k
FY 2012 actual $5,997,888 -$345,242 -5.44°k
FY 2011 actual $6,343,130 -$477,153 -7.00°k
FY 2010 actual $6,820,283 -$1 ,586,647 -18.87°k
The Diamond Jo payment related to the revised parking agreement
increased from $500,000 in FY 2019 to $567,306 based on Consumer Price
Index adjustments since the lease was implemented.
h. DRA Gaming. The split of gaming revenues from taxes and the DRA lease
(not distributions) in FY 2020 is recommended to remain at a split of gaming
taxes and rents between operating and capital budgets of 96 percent
FY 2020 Budget and Fiscal Policy Guidelines
Page 15
operating and 4 percent capital. When practical in future years, additional
revenues will be moved to the capital budget from the operating budget. The
following shows the annual split of gaming taxes and rents between
operating and capital budgets from FY2016 — FY2020:
Split of Gaming Tax + Revenue Between Operating
& Capital Budgets
FY 2020 95% � 4%
FY 2019 � 96% � �4%
FY 2018 97% �/
FY 2017 99% ■
FY 2016 100% 0%
30% 40% 50% 60% 70% 80% 90% 100%
Operating ■Capital
i. Diamond Jo Revenue. The Diamond Jo Patio lease ($25,000 in FY 2020)
and the Diamond Jo parking privileges ($567,306 in FY 2020) have not been
included in the split with gaming revenues. This revenue is allocated to the
operating budget.
. � -
j. Residential Rollback. The residential rollback factor will increase from
55.621 percent to 56.1324 percent or a 0.92 percent increase in FY 2020.
The rollback has been estimated to remain the same from Fiscal Years 2021
thru 2024.
The percent of growth from revaluation is to be the same for agricultural and
residential property; therefore, if one of these classes has less than 3°k
growth for a year, the other class is limited to the same percent of growth. A
balance is maintained between the two classes by ensuring that they
increase from revaluation at the same rate. In FY 2020, agricultural property
had more growth than residential property which caused the rollback factor to
increase.
The increase in the residential rollback factor increases the value that each
residence is taxed on. This increased taxable value for the average
homeowner ($74,230 taxable value in FY 2019 and $78,301 taxable value in
2020) results in more taxes to be paid per $1 ,000 of assessed value. In an
effort to keep property taxes low to the average homeowner, the City
calculates the property tax impact to the average residential property based
on the residential rollback factor and property tax rate. In a year that the
residential rollback factor increases, the City recommends a lower property
FY 2020 Budget and Fiscal Policy Guidelines
Page 16
tax rate than what would be recommended had the rollback factor remained
the same.
The residential rollback in Fiscal Year 1987 was 75.6481 percent as
compared to 56.1324 percent in Fiscal Year 2020. The rollback percent had
steadily decreased since FY 1987, which has resulted in less taxable value
and an increase in the City's tax rate. However, that trend began reversing in
FY 2009 when the rollback reached a low of 44.0803 percent. If the rollback
had remained at 75.6481 percent in FY 2019, the City's tax rate would have
been $7.65 per $1 ,000 of assessed value instead of$10.59 in FY 2019.
k. State Equalization Order/Property Tax Reform. There was not an
equalization order for commercial or industrial property in Fiscal Year 2020.
The lowa Department of Revenue is responsible for "equalizing"
assessments every two years. Also, equalization occurs on an assessing
jurisdiction basis, not on a statewide basis.
Commercial and Industrial taxpayers previously were taxed at 100 percent of
assessed value; however due to legislative changes in FY 2013, a 95°k
rollback factor was applied in FY 2015 and a 90°k rollback factor will be
applied in FY 2016 and beyond. The State of lowa will backfill the loss in
property tax revenue from the rollback and the backfill 100°k in FY 2015
through FY 2017 and then the backfill will be capped at the FY 2017 level in
FY 2018 and beyond. The FY 2019 State backfill for property tax loss is
estimated to be $1,032,700.
Elements of the property tax reform passed by the lowa Legislature in 2013
have created a tremendous amount of uncertainty in the budget process.
While the State has committed to provide some funding for the City revenue
reductions caused by the decrease in taxable value for commercial and
industrial properties, key legislators have been quoted in the media as
casting doubt on the reimbursements continuing. Beginning in FY 2021, it
is assumed that the State will eliminate the backfill over a five-year
period.
The projected reduction of State backfill revenue to the general fund is as
follows:
� .
2021 -$206,540
2022 -$206,540
2023 -$206,540
2024 -$206,540
2025 -$206,540
Total -$1 ,032,700
FY 2020 Budget and Fiscal Policy Guidelines
Page 17
FY 2015 was the first year that commercial, industrial and railroad properties
were eligible for a Business Property Tax Credit. The Business Property Tax
Credit will be deducted from the property taxes owed and the credit is funded
by the State of lowa. Eligible businesses must file an application with the
Assessor's office to receive the credit with a deadline of January 15, 2019 for
applications to be considered for FY 2020. The calculation of the credit is
dependent on the number of applications that were received and approved
statewide versus the amount that was appropriated for the fiscal year, the
levy rates for each parcel, and the difference in the commercial/industrial
rollback compared to residential rollback. In FY 2015, the lowa Legislature
has appropriated $50 million for FY15; $100 million for FY16; and $125
million for FY17 and thereafter. The estimated initial amount of value that will
be used to compute the credit in FY 2015 is $33,000, FY 2016 is $183,220,
FY 2017 is $255,857, FY 2018 is $266,340, and FY 2019 is $231 ,603. The
basic formula is the value multiplied by the difference in rollbacks of
commercial and residential property then divided by one thousand and then
multiplied by the corresponding levy rate. The average commercial and
industrial properties ($432,475 Commercial / $599,500 Industrial) will receive
a Business Property Tax Credit from the State of lowa for the City share of
their property taxes of$148 in FY 2015, $693 in FY 2016, $982 in FY 2017,
$959 in FY 2018, and $843 in FY 2019. Projected at $929 in FY 2020.
I. Multi-Residential Property Class/Eliminated State Shared Revenue.
Beginning in FY 2017 (July 1 , 2016), new State legislation created a new
property tax classification for rental properties called multi-residential, which
requires a rollback, or assessment limitations order, on multi-residential
property which will eventually equal the residential rollback. Multi-residential
property includes apartments with 3 or more units. Rental properties of 2
units were already classified as residential property. The State of lowa will
not backfill property tax loss from the rollback on multi-residential property.
The rollback will occur as follows:
- . � . � . .
FY 2017 86.25°k $ 331 ,239
FY 2018 82.50°k $ 472,127
FY 2019 78.75°k $ 576,503
FY 2020 75.00°k $ 696,046
FY 2021 71 .25°k $ 614,319
FY 2022 67.50°k $ 952,466
FY 2023 63.75°k $ 1 ,018,664
FY 2024 55.63°k $ 1 ,187,123
Total $5,848,487
'56.13°k = Current residential rollback
This annual loss in tax revenue of $696,046 in FY 2020 and $1,187,123
from multi-residential property when fully implemented in FY 2024 will
not be backfilled by the State. From Fiscal Year 2017 through Fiscal Year
FY 2020 Budget and Fiscal Policy Guidelines
Page 18
2024 the City will lose $5,848,487 in total, meaning landlords will have paid
that much less in property taxes. The state did not require landlords to
charge lower rents or to make additional investment in their property.
In addition, the State of lowa eliminated the:
o Machinery and Equipment Tax Replacement in FY 2003 (-$200,000)
o Personal Property Tax Replacement in FY 2004 (-$350,000)
o Municipal Assistance in FY 2004 (-$300,000)
o Liquor Sales Revenue in FY 2004 (-$250,000)
o Bank Franchise Tax in FY 2005 (-$145,000)
The combination of the decreased residential rollback, State funding cuts and
increased expenses has forced the City's tax rate to increase since 1987
when the citizens passed a referendum to establish a one percent local
option sales tax with 50°k of the revenue going to property tax relief.
n. Taxable Value. FY 2020 will reflect the following impacts of taxable values of
various property types:
. � - � - � - . �
Residential +1 .95°k
Commercial +1 .71 °k
Industrial +2.14°k
Multi-Residential -2.96°k
Overall +0.50°k'
'Overall taxable value increased 0.50 percent after deducting Tax
Increment Financing values
Assessed valuations were increased 2 percent per year beyond FY 2020.
o. Riverfront Property Lease Revenue. Riverfront property lease revenue is
projected to increase by $219,765 in FY 2020 due to the new Hodge lease
payment effective November 2018 and the first full year in FY 2020.
p. Franchise Fees. Natural Gas franchise fees have been projected to increase
5.5 percent over FY18 actual of$1 ,147,459 based on the projected growth.
Also, Electric franchise fees have been projected to increase 5.5 percent
over FY18 actual of$3,398,709 based on the projected growth. The
franchise fee revenues are projected to increase at an annual rate of 4
percent per year from FY 2021 thru FY 2024.
The franchise fee charged on gas and electric bills increased from 3°k to 5°k,
the legal maximum, on June 1 , 2015.
FY 2020 Budget and Fiscal Policy Guidelines
Page 19
q. Property Tax Rate. For purposes of budget projections only, it is assumed
that City property taxes will continue to increase at a rate necessary to meet
additional requirements over resources beyond FY 2021 .
r. Police & Fire Protection. FY 2020 reflects the twelfth year that payment in
lieu of taxes is charged to the Water and Sanitary Sewer funds for Police and
Fire Protection. In FY 2020, the Sanitary Sewer fund is charged 0.43°k of
building value and the Water fund is charged 0.62°k of building value, for
payment in lieu of taxes for Police and Fire Protection. This revenue is
reflected in the General Fund and is used for general property tax relief.
II. ASSUMPTIONS — REQUIREMENTS
a. Pension Systems. The Municipal Fire and Police Retirement System of
lowa Board of Trustees City contribution for Police and Fire retirement
decreased from 26.02 percent in FY 2019 to 24.41 percent in FY 2020
(general fund savings of$162,007). Also, the lowa Public Employee
Retirement System (IPERS) City contribution is unchanged from the FY2019
contribution rate of 9.44 percent (no general fund impact). The IPERS
employee contribution is also unchanged from the FY 2019 contribution rate
of 6.29°k (which does not affect the City's portion of the budget). The IPERS
rate is anticipated to increase 1 percent each succeeding year.
b. Collective Bargaining. Consistent with the already approved collective
bargaining agreements for Teamsters Local Union 120, Teamsters Local
Union 120 Bus Operators, Dubuque Professional Firefighters Association,
and International Union of Operating Engineers, in FY 2020 there is a 1 .5°k
employee wage increase for represented and non-represented employees at
a cost of$550,635 to the General Fund.
c. Health Insurance. The City portion of health insurance expense is projected
to decrease from $1 ,193 per month per contract to $903 per month per
contract (based on 572 contracts) in FY 2020 (general fund savings of
$1 ,218,758). The City of Dubuque is self-insured, and actual expenses are
paid each year with the City only having stop-loss coverage for major claims.
In FY 2017, The City went out for bid for third party administrator and the
estimated savings has resulted from the new contract and actual claims paid.
In addition, firefighters began paying an increased employee health care
premium sharing from 10°k to 15°k and there was a 7°k increase in the
premium on July 1 , 2018. During FY 2019, the City went out for bid for third
party administrator for the prescription drug plan and there will be savings
resulting from the bid award. Estimates for FY 21-24 have been increased by
5.62 percent per year.
d. Sick Leave Payout. FY 2013 was the first year that eligible retirees with at
least twenty years of continuous service in a full-time position or employees
who retired as a result of a disability and are eligible for pension payments
FY 2020 Budget and Fiscal Policy Guidelines
Page 20
from the pension system can receive payment of their sick leave balance
with a maximum payment of 120 sick days, payable bi-weekly over a five-
year period. The sick leave payout expense budget in the General Fund in
FY 2019 was $179,120 as compared to FY 2020 of$188,595, based on
qualifying employees officially giving notice of retirement.
e. Supplies & Services. General operating supplies and seroices are
estimated to increase 2°k over actual in FY 2018. A 2°k increase is
estimated in succeeding years.
f. Electricity. Electrical energy expense is estimated to have a 1°k increase
over FY 2018 actual expense, then 2°k per year beyond.
g. Natural Gas. Natural gas expense is estimated to have no increase over FY
2018 actual expense, then 2°k per year beyond.
h. Travel Dubuque. The Dubuque Area Convention and Visitors Bureau
contract will continue at 50°k of actual hotel/motel tax receipts.
i. Equipment & Machinery. Equipment costs for FY 2020 are estimated to
decrease 15.5°k under FY 2018 budget, then remain constant per year
beyond.
j. Debt Service. Debt service is estimated based on the tax-supported,
unabated General Obligation bond sale for fire truck and franchise fee
litigation settlement.
k. Unemployment. Unemployment expense in the General Fund decreased
from $67,502 in FY 2019 to $54,286 in FY 2020 based on estimated savings
from a change in the administration of the reserve.
I. Motor Vehicle Fuel. Motor vehicle fuel is estimated to increase 7°k over FY
2019 budget (+$158,173), then increase 2.0°k per year beyond.
m. Motor Vehicle Maintenance. Motor vehicle maintenance is estimated to
decrease 1 .4°k under FY 2019 budget based on FY 2018 actual, then
increase 2.0°k per year and beyond.
n. Public Transit. The decrease in property tax support for Transit from FY
2019 to FY 2020 is $20,512, which reflects decreased expense for health
insurance ($28,982); decrease in workers compensation ($20,514); decrease
in electrical utility ($17,616);increase in motorvehicle maintenance and
diesel fuel ($65,800); decrease in machinery and equipment ($212,299) and
decreased FTA operating revenue ($148,416).
FY 2020 Budget and Fiscal Policy Guidelines
Page 21
The following is a ten-year history of the Transit subsidy:
� . � -
2020 Pro�ection $1 ,550,795 -1 .31 °k
2019 Bud et $1 ,571 ,307 -0.10°k
2018 Actual $1 ,572,825 34.10°k
2017 Actual $1 ,172,885 24.41 °k
2016 Actual $942,752 -13.20°k
2015 Actual $1 ,086,080 30.33°k
2014 Actual $833,302 -20.19°k
2013 Actual $1 ,044,171 45.51 °k
2012 Actual $717,611 -33.48°k
2011 Actual $1 ,078,726 -7.12°k
2010 Actual $1 ,161 ,393 -7.36°k
2009 Actual $1 ,253,638 +17.2°k
o. Shipping & Postage. Postage rates for FY 2020 are estimated to increase
1 °k over FY 2018 actual expense due to postage inventory levels at year-end
and proposed cost increases by USPS. A 2.0 percent increase is estimated
in succeeding years.
p. Insurance. Insurance costs are estimated to change as follows:
o Workers Compensation is decreasing 8.75°k based on the lowa
Workers Compensation law changed effective July 1 , 2017. This law
change reduced the amount of liability employers incur for certain
work-related injuries. In addition, the City is making changes to the
administration of Workers Compensation reserve.
o General Liability is increasing 3.70°k.
o Damage claims is decreasing 33.71 °k based on a three year average.
o Property insurance is increasing 13.17°k.
q. Housing. The Section 8 Housing subsidy payment from the General Fund is
estimated to decrease $89,283 in FY 2020. In FY 2011 , the City approved
reducing the number of allowed Section 8 Housing Vouchers from 1 ,060 to
900 vouchers. This reduction in vouchers was estimated to reduce Section 8
administrative fees from HUD by $100,000 per year. However, in the
transition, the number of vouchers dropped to 803 vouchers. HUD has based
the Section 8 administrative fees for FY 2020 on the lower number of
vouchers held in FY 2019 which has decreased the amount of revenue
received by the Section 8 program in FY 2020. The City is in the process of
increasing the Section 8 Housing Vouchers back to 1 ,072.
r. CAN Fund. The Cable TV Fund no longer funds Police and Fire public
education, Information Services, Health Services, Building Services, Legal
Services, and City Manager's Office due to reduced revenues from the cable
franchise. This is due to Mediacom's conversion from a Dubuque franchise to
a state franchise in October 2009 which changed the timing and calculation
FY 2020 Budget and Fiscal Policy Guidelines
Page 22
of the franchise fee payments.
Effective June 2020, Mediacom will no longer contribute to the Public,
Educational, and Governmental Access Cable Grant (PEG) Fund, and the
City will be responsible for all Cable TV equipment replacement costs.
s. Greater Dubuque Development Corporation. Greater Dubuque
Development Corporation support of$780,613 is budgeted to be paid mostly
from Dubuque Industrial Center Land Sales in FY 2020, with $100,000 to
implement the True North strategy paid from the Greater powntown TIF. In
FY 2021 and beyond Greater Dubuque Development Corporation will be paid
from the Greater powntown TIF and Dubuque Industrial Center West land
sales.
PROPERTY TAX IMPACT
The recommended Fiscal Year 2020 property tax rate decrease of 0.97°k will have the
following impact:
i i � �
Pro ert Tax Rate $10.4856 -0.97°k -$0.1029
Avera e Residential Pa ment $770.17 +0.00°k +$0
Avera e Commercial Pa ment $3,258.81 -0.59°k -$ 19.42
Avera e Industrial Pro ert $4,835.02 -0.72°k -$ 34.88
Avera e Multi-Residential Pro ert $1 ,763.85 -5.69°k -$106.36
Historical Impact on Tax Askings and Average Residential Property Tax Rates
The following is a historical City tax rate comparison. The average percent change in tax
rate from 1987 — 2020 is -0.92°k.
FY 2020 Budget and Fiscal Policy Guidelines
Page 23
Historic Impact on Tax Askings & Average Residential
Property Tax Rates
$16.00 10%
$14.00
5%
$12.00
$10.00 �%
$8.00 -5%
$6.00
` -10%
$4.00 � . . . . . . . . . . . . . � ■ . . I
$2.00 -15%
$- -20%
I� c0 P O � N M V h �O I� c0 P O N M V h �O I� c0 P O � N M V h �O I� c0 P O
c0 c0 c0 P P P P P P P P P P O O O O O O O O O O � � N
P P P P P P P P P P P P P O O O O O O O O O O O O O O O O O O O O O
� � � � � � � � � � � � � N N N N N N N N N N N N N N N N N N N N N
� � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � �
LL LL LL LL LL LL LL LL LL LL LL LL LL LL LL LL LL LL LL LL LL LL LL LL LL LL LL LL LL LL LL LL LL LL
(`�i..T.... D..tE �P/ (`I.........�..T.... D..i..
Historical:
FY 1987 14.5819 FY 2004 10.273 0.60%
FY 1988 13.95 -4.33% FY 2005 10.072 -1.96%
FY 1989 11.8007 -15.41% FY 2006 9.6991 -3.70%
FY 1990 11.6891 -0.95% FY 2007 9.9803 2.90%
FY 1991 12.266 4.94% FY 2008 10.3169 3.37%
FY 1992 12.7741 4.14% FY 2009 9.969 -3.37%
FY 1993 12.4989 -2.15% FY 2010 9.8577 -1.12%
FY 1994 12.6059 0.86% FY 2011 10.0274 1.72%
FY 1995 11.7821 -6.54% FY 2012 10.4511 4.22%
FY 1996 11.7821 0.00% FY 2013 10.7848 3.19%
FY 1997 11.3815 -3.40% FY 2014 11.0259 2.23%
FY 1998 11.4011 0.17% FY 2015 11.0259 0%
FY 1999 11.0734 -2.87% FY 2016 11.0259 0%
FY 2000 10.716 -3.23% FY 2017 11.1674 1.28%
FY 2001 11.0671 3.28% FY 2018 10.8922 -2.46%
FY 2002 10.7608 -2.77% FY 2019 10.5884 -2.79%
FY 2003 10.212 -5.10% FY 2020 10.4856 -0.97%
FY 2020 Budget and Fiscal Policy Guidelines
Page 24
Projected Impacts on Tax Askings and Average Residential Property Tax Rates
Projected Impacts on Tax Askings & Average
Residential Property Tax Rates
$12.50 6.00�o
$12.00 _ - S.00�o
_� 4.00�o
$1 1.50 " 3.00�o
$1 1.00 � 2.00�o
$10.50 � 1.00�o
' O.00�o
$10.00 -1.00�o
$9.50 -2.00�o
FY 2020 FY 2021 FY 2022 FY 2023 FY 2024
�City Tax Rate �o Change in Tax Rate
Projected:
- - . - -
FY 2020 10.4856 -0.97%
FY 2021 10.5168 +0.30%
FY 2022 10.8831 +3.48%
FY 2023 11.3251 +4.06%
FY 2024 11.9426 +5.45%
FY 2020 Budget and Fiscal Policy Guidelines
Page 25
IMPACT ON AVERAGE RESIDENTIAL PROPERTY - EXAMPLE
, , ,
� � • � -
� � �
, , � - , , , � ,
, � �
FY 1989 "Cit " Pro e Tax $ 453.99 -11.40% - $ 58.39
FY 1990 "City" Property Tax $ 449.94 - 0.89% - $ 4.04
FY 1991' "Cit " Pro e Tax' $ 466.92 + 3.77% +$ 16.98
FY 1992 "City" Property Tax $ 483.63 + 3.58% +$ 16.71
FY 1993' "Cit " Pro e Tax' $ 508.73 + 5.19% +$ 25.10
FY 1994 "City" Property Tax $ 510.40 + 0.30% +$ 1.51
FY 1995' "Cit " Pro e Tax' $ 522.65 + 2.43% +$ 12.41
FY 1996 "City" Property Tax $ 518.10 - 0.87% - $ 4.54
FY 1997' "Cit " Pro e Tax' $ 515.91 - 0.42% - $ 2.19
FY 1998 "City" Property Tax $ 512.25 - 0.71% - $ 3.66
FY 1999 "Cit " Pro e Tax' $ 512.25 - 0.00% $ 0.00
FY 2000 "City" Property Tax $ 511.38 - 0.17% - $ 0.87
FY 2001 "Cit " Pro e Tax $ 511.38 0.00% $ 0.00
FY 2002 "City" Property Tax $ 511.38 0.00% $ 0.00
FY 2003 "Cit " Pro e Tax' $ 485.79 - 5.00% -$ 25.58
FY 2004 "City" Property Tax $ 485.79 0.00% $ 0.00
With Homestead Ad'. $ 493.26 + 1.54% +$ 7.46
FY 2005 "City" Property Tax' $ 485.93 + 0.03% +$ 0.14
With Homestead Adj.' $ 495.21 + 0.40% +$ 1.95
FY 2006 "City" Property Tax (1) $ 494.27 + 1.72% +$ 8.34
With Homestead Ad'. 1 $ 504.62 + 1.90% +$ 9.41
FY 2007 "City" Property Tax'(2) $ 485.79 - 1.72% -$ 8.48
With Homestead Ad'.' $ 496.93 - 1.52% -$ 7.69
FY 2008 "City" Property Tax $ 496.93 0.00% $ 0.00
With Homestead Adj. $ 510.45 + 2.72% +$13.52
FY 2009 "City" Property Tax $ 524.53 + 2.76% +$14.08
With Homestead Ad'. $ 538.07 + 5.41% +$27.62
FY 2010 "City" Property Tax $ 538.07 + 0.00% +$ 0.00
With Homestead Ad'. $ 550.97 + 2.40% +$12.90
FY 2011 "City" Property Tax $ 564.59 + 2.47% +$13.62
With Homestead Adj. (3) $ 582.10 + 5.65% +$31.13
FY 2012 "City" Property $ 611.19 + 5.00% +$2g.09
With Homestead Ad'. 3 $ 629.78 + 8.19% +$47.68
FY 2013 "City" Property $ 661.25 + 5.00% +$31.47
With Homestead Ad'. 3 $ 672.76 + 6.82% +$42.98
FY 2014 "City" Property $ 705.71 + 4.90% +$32.95
FY 2015 "Cit " Pro ert $ 728.48 + 3.23% +$22.77
FY 2016 "City" Property $ 747.65 + 2.63% +$19.17
FY 2017 "Cit " Pro ert $ 755.70 + 1.08% +$ 8.05
FY 2018 "City" Property $ 755.70 + 0.00% +$ 0.00
FY 2019 "Cit " Pro ert $ 770.17 + 1.92% +$ 14.47
Average FY 1989-FY 2019 with Homestead Adj. + 1.39% + $ 8.32
� - . . - � . . - - . . � . � •��
FY 2020 Budget and Fiscal Policy Guidelines
Page 26
- • •
� � • � -
, , � , ,
FY 2020 "City" Property Tax' $ 770.17 +0.00% +$0.00
FY 2021 "Cit " Pro e Tax $ 772.47 +0.30% +$2.30
FY 2022 "City" Property Tax' $ 799.37 +3.48% +$26.90
FY 2023 "Cit " Pro e Tax $ 831.84 +4.06% +$32.46
FY 2024 "City" Property Tax $ 877.19 +5.45% +$45.36
' Denotes year of State-issued equalization orders.
^ Impact to the average homeowner if the State funds the Homestead Property Tax Credit at 62%.
(1) The FY 2006 property tax calculation considers the 6.2%valuation increase for the average residential
homeowner as determined by the reappraisal.
(2) Offsets the impact of the State reduced Homestead Property Tax Credit in FY 2005 & 2006.
(3) The City adopted a budget in FY 2011 and 2012 that provided no increase to the average
homeowner. The State of lowa underfunded the Homestead Property Tax Credit in both years costing
the average homeowner an additional $18.59 in FY 2012 and $11.51 in FY 2013. This provided no
additional revenues to the City, as this money would have come to the City from the State if they
appropriated the proper amount of funds.
Homestead Property Tax Credit
The Homestead Property Tax Credit was established by the state legislature to reduce the amount
of property tax collected. The intent of the credit was to be a form of tax relief and provide an
incentive for home ownership. The State Homestead Property Tax Credit works by discounting the
tax collected on the first $4,850 of a property's taxable value. This has no impact on what the City
receives from property tax collections, but provides tax relief for the average homeowner.
Beginning FY 2004, the State of lowa did not fully fund the State Homestead Property Tax Credit
resulting in the average homeowner paying the unfunded portion. Again, this has no impact on
what the City receives, however as a result has caused the average homeowner to pay more
taxes.
Historical Percent of lowa Homestead Property Tax Credit
Funded by State of lowa
2013- 2019 00%
2012- 2013 78%
2011 - 2012 62%
2010- 2011 64%
2009- 2010 72%
2008- 2009 72%
2007- 2008 73%
2006- 2007 77%
2005- 2006 78%
2004- 2005 81%
2003- 2004 85%
2002- 2003 00%
00% 10% 20% 30% 40% 50% 60% 70% 80% 90% 100%
FY 2020 Budget and Fiscal Policy Guidelines
Page 27
IMPACT ON COMMERCIAL PROPERTY - EXAMPLE
ACTUAL - HISTORICAL
� � • � -
, , � , ,
FY 1989 "Cit " Pro ert Tax $2,106.42 -15.43% -$ 384.19
FY 1990 "City" Property Tax $2,086.50 - .95% - $ 19.92
FY 1991 "Cit " Pro ert Tax' $2,189.48 + 4.94% +$ 102.98
FY 1992 "City" Property Tax $2,280.18 + 4.14% +$ 90.70
FY 1993 "Cit " Pro ert Tax' $2,231.05 - 2.15% -$ 49.13
FY 1994 "City" Property Tax $2,250.15 + 0.86% +$ 19.10
FY 1995 "Cit " Pro ert Tax' $2,439.60 + 8.42% +$ 189.45
FY 1996 "Cit " Pro ert Tax $2,439.60 + 0.00% +$ 0.00
FY 1997 "City" Property Tax' $2,659.36 + g.01% +$ 219.76
FY 1998 "Cit " Pro ert Tax $2,738.43 + 2.g7% +$ 79.07
FY 1999 "City" Property Tax' $2,952.03 + 7.80% +$ 213.60
FY 2000 "Cit " Pro ert Tax $2,934.21 - 0.60% -$ 17.82
FY 2001 "City" Property Tax $2,993.00 + 2.01% +$ 58.86
FY 2002 "Cit " Pro ert Tax $2,910.25 - 2.77% -$ 82.84
FY 2003 "City" Property Tax' $3,186.27 + g.48% +$ 276.03
FY 2004 "Cit " Pro ert Tax $3,278.41 + 2.8g% +$ 92.15
FY 2005 "City" Property Tax' $3,349.90 + 2.18% +$ 71.48
FY 2006 "Cit " Pro ert Tax 1 $3,152.52 - 5.89% -$ 197.38
FY 2007 "City" Property Tax' $3,538.03 +12.23% +$ 385.50
FY 2008 "Cit " Pro ert Tax $3,688.64 + 4.26% +$ 150.62
FY 2009 "City" Property Tax' $3,554.71 - 3.63% -$ 133.94
FY 2010 "Cit " Pro ert Tax $3,524.48 - 0.85% -$ 30.23
FY 2011 "City" Property Tax $3,585.16 + 1.72% +$ 60.68
FY 2012 "Cit " Pro ert Tax $3,736.64 + 4.23% +$ 151.48
FY 2013 "City" Property Tax $3,855.96 + 3.19% +$ 119.32
FY 2014 "Cit " Pro ert Tax $3,942.14 + 2.24% +$ 86.20
FY 2015 "Cit " Pro ert Tax' 2 $3,896.93 - 1.15% -$ 45.21
FY 2016 "City" Property Tax (3) $3,139.16 -19.45% -$ 757.77
FY 2017 "Cit " Pro ert Tax' 4 $3,364.61 +7.18% +$ 225.45
FY 2018 "City" Property Tax' (5) $3,280.44 -2.50% -$ 84.16
FY 2019 "Cit " Pro ert Tax' 6 $3,278.23 -0.07% -$ 2.21
Average FY 1989-2019 + 0.88% +$ 25.41
PROJECTED
� � • � -
, , � , ,
FY 2020 "Cit " Pro ert Tax $ 3,258.81 - 0.59% -$ 19.42
FY 2021 "City" Property Tax' $ 3,268.52 +0.30% +$ g.71
FY 2022 "Cit " Pro ert Tax $ 3,382.36 +3.48% +$113.84
FY 2023 "City" Property Tax' $ 3,519.72 +4.06% + $137.37
FY 2024 "Cit " Pro ert Tax $ 3,711.64 +5.45% +$191.92
FY 2020 Budget and Fiscal Policy Guidelines
Page 28
' Denotes year of State-issued equalization orders
(1) The FY 2006 property tax calculation considers the 3% valuation decrease for commercial property as
determined by the reappraisal.
(2) The Business Property Tax Credit was $148 and rollback to 95% in FY 2015.
(3) The Business Property Tax Credit was $693 and rollback to 90% in FY 2016.
(4) The Business Property Tax Credit was $982 and rollback to 90% in FY 2017.There was a State
issued equalization order of 12% for commercial property in FY 2017 which raised the average
assessed value from $386,139 to $432,475.
(5) The Business Property Tax Credit was $959 and rollback to 90% in FY 2018.
(6) The Business Property Tax Credit was $843 and rollback to 90% in FY 2019.
FY 2020 Budget and Fiscal Policy Guidelines
Page 29
IMPACT ON INDUSTRIAL PROPERTY - EXAMPLE
, , � - ,
� � • � -
, , � , ,
FY 1989 "City" Property Tax $5,900.35 -15.40% -$1,074.65
FY 1990 "Cit " Pro ert Tax $5,844.55 - .90% -$ 55.80
FY 1991 "Cit " Pro ert Tax $6,133.00 + 4.90% +$ 288.45
FY 1992 "City" Property Tax $6,387.05 + 4.10% +$ 254.05
FY 1993 "Cit " Pro ert Tax $6,249.45 - 2.20% -$ 137.60
FY 1994 "City" Property Tax $6,302.95 + 0.90% +$ 53.50
FY 1995 "Cit " Pro ert Tax $5,891.05 - 6.50% -$ 411.90
FY 1996 "City" Property Tax $5,891.05 + 0.00% +$ 0.00
FY 1997 "Ci " Pro ert Tax $5,690.75 - 3.40% -$ 200.30
FY 1998 "City" Property Tax $5,700.56 + .17% +$ 9.81
FY 1999 "Ci " Pro ert Tax $5,536.70 - 2.87% -$ 163.86
FY 2000 "City" Property Tax $5,358.00 - 3.23% -$ 178.70
FY 2001 "Ci " Pro ert Tax $5,533.00 + 3.28% +$ 175.55
FY 2002 "City" Property Tax $5,380.42 - 2.77% -$ 153.13
FY 2003 "Ci " Pro ert Tax $5,106.00 - 5.10% -$ 274.40
FY 2004 "City" Property Tax $5,136.50 + .60% +$ 30.50
FY 2005 "Ci " Pro ert Tax $5,036.00 - 1.96% -$ 100.50
FY 2006 "City" Property Tax (1) $5,814.61 +15.46% +$ 778.61
FY 2007 "Ci " Pro ert Tax $5,983.21 + 2.g0% +$ 168.60
FY 2008 "City" Property Tax $6,184.95 + 3.37% +$ 201.74
FY 2009 "Ci " Pro ert Tax $5,976.44 - 3.37% -$ 208.51
FY 2010 "Ci " Pro ert Tax $5,909.69 - 1.12% -$ 66.75
FY 2011 "Ci " Pro ert Tax $6,011.44 - 1.72% +$ 101.75
FY 2012 "Ci " Pro ert Tax $6,265.43 + 4.23% +$ 254.00
FY 2013 "City" Property Tax $6,465.48 + 3.19% +$ 200.04
FY 2014 "Ci " Pro ert Tax $6,610.00 + 2.24% +$ 144.53
FY 2015 "City" Property Tax (2) $6,131.80 - 7.23% -$ 478.20
FY 2016 "Ci " Pro ert Tax 3 $5,256.41 - 14.28% -$ 875.39
FY 2017 "City" Property Tax' (4) $5,043.36 - 4.05% -$ 213.05
FY 2018 "Ci " Pro ert Tax' 5 $4,917.78 - 2.49% -$ 125.58
FY 2019 "City" Property Tax' (6) $4,869.91 -0.97% -$ 47.87
Average FY 1989-FY 2019 - 1.10% -$ 67.91
- • �
� � • � -
, , � , ,
FY 2020 "City" Property Tax $ 4,835.02 -0.72% -$ 34.88
FY 2021 "Ci " Pro ert Tax' $ 4,849.43 +0.30% +$14.41
FY 2022 "Ci " Pro ert Tax $ 5,018.33 +3.48% +$168.90
FY 2023 "City" Property Tax' $ 5,222.14 +4.06% +$203.81
FY 2024 "Ci " Pro ert Tax $ 5,506.89 +5.45% +$284.75
FY 2020 Budget and Fiscal Policy Guidelines
Page 30
(1) The FY 2006 property tax calculation considers the 19.9%valuation increase for industrial property as
determined by the reappraisal.
(2) The Business Property Tax Credit was $148 and rollback to 95% in FY 2015.
(3) The Business Property Tax Credit was $693 and rollback to 90% in FY 2016.
(4) The Business Property Tax Credit was $982 and rollback to 90% in FY 2017.
(5) The Business Property Tax Credit was $959 and rollback to 90% in FY 2018.
(6) The Business Property Tax Credit estimated to be $822 and rollback to 90% in FY 2019.
FY 2020 Budget and Fiscal Policy Guidelines
Page 31
IMPACT ON MULTI-RESIDENTIAL PROPERTY - EXAMPLE
, , � - ,
� � • � -
, , � , ,
FY 2015 "City" Property Tax $2,472.99
FY 2016 "Cit " Pro ert Tax $2,225.69 -10.00% -$247.30
FY 2017 "Ci " Pro ert Tax' $2,160.39 -2.93% -$65.30
FY 2018 "City" Property Tax' $2,015.48 - 6.71% -$144.91
FY 2019 "Ci " Pro ert Tax' $1,870.21 -7.21% -$145.26
Average FY 2016-FY 2019 -6.71% -$150.69
- • •
� � • � -
, , � , ,
FY 2020 "City" Property Tax' $ 1,763.85 -5.69% -$106.36
FY 2021 "Ci " Pro ert Tax $ 1,680.65 -4.72% -$83.20
FY 2022 "City" Property Tax' $ 1,647.65 -1.96% -$33.00
FY 2023 "Ci " Pro ert Tax $ 1,619.31 -1.72% -$28.34
FY 2024 "Ci " Pro ert Tax $ 1,503.56 -7.15% -$115.75
Beginning in FY 2017 (July 1, 2016), new State legislation created a new property tax classification
for rental properties called multi-residential, which requires a rollback, or assessment limitations
order, on multi-residential property which will eventually equal the residential rollback. Multi-
residential property includes apartments with 3 or more units. Rental properties of 2 units were
already classified as residential property. The State of lowa will not backfill property tax loss from
the rollback on multi-residential property. The rollback will occur as follows:
- . .. � . . -
2017 86.25% $ 331,239
2018 82.50% $ 472127
2019 78.75% $ 576,503
2020 75.00% $ 696,046
2021 71.25% $ 614 319
2022 67.50% $ 952,466
2023 63.75% $ 1,018,664
2024 55.63% $ 1 187123
Total $5,848,487
*56.13% = Current residential rollback
This annual loss in tax revenue of$696,046 in FY 2020 and $1,187,123 from multi-residential
property when fully implemented in FY 2024 will not be backfilled by the State. From Fiscal Year
2017 through Fiscal Year 2024 the City will lose $5,848,487 in total, meaning landlords will have
paid that much less in property taxes. The state did not require landlords to charge lower rents or
to make additional investment in their property.
There were reappraisals done in Fiscal Year 2016 that may have increased the taxable value for
the properties considered multi-residential; however, the overall assessments for multi-residential
property has remained relatively flat except for twelve large properties that increased significantly.
The assessed value for multi-residential properties in Fiscal Year 2017 did not increase and
landlords began receiving tax breaks with their September 2016 tax payments.
FY 2020 Budget and Fiscal Policy Guidelines
Page 32
HISTORY OF INCREASES IN PROPERTY TAX ASKINGS
� -
. � - � . .
� � . - .
. ,
FY 1989 $10,918,759 -12.0°k -11 .4°k
Sales Tax Initiated
FY 1990 $10,895,321 - 0.2°k - 0.9°k
FY 1991 $11 ,553,468 + 6.0°k + 3.8°k
FY 1992 $12,249,056 + 6.0°k + 3.6°k
FY 1993 $12,846,296 + 4.9°k + 5.0°k
FY 1994 $13,300,756 + 3.5°k + 0.3°k
FY 1995 $13,715,850 + 3.1 °k + 2.4°k
FY 1996 $14,076,320 + 2.6°k - 0.9°k
FY 1997 $14,418,735 + 2.4°k - 0.4°k
FY 1998 $14,837,670' + 2.9°k - 0.7°k
FY 1999 $15,332,806' + 3.3�� 0.0°k
FY 2000 $15,285,754 - 0.3°k - 0.2°k
FY 2001 $15,574,467 + 1 .9°k 0.0°k
FY 2002 $15,686,579 + 0.7°k 0.0°k
FY 2003 $15,771 ,203 + 0.5°k - 5.0°k
FY 2004 $16,171 ,540 + 2.5°k 0.0°k
FY 2005 $16,372,735 + 1 .2°k 0.0°k
FY 2006 $16,192,215 - 1 .1 °k + 1 .7°k
FY 2007 $17,179,994 + 6.1 °k - 1 .7°k
FY 2008 $18,184,037 + 5.8°k 0.0°k
FY 2009 $18,736,759 + 3.0°k +2.8°k
FY 2010 $19,095,444 + 1 .9°k 0.0°k
FY 2011 $19,878,962 + 4.1 °k +2.5°k
FY 2012 $21 ,284,751 + 7.1 °k +5.0°k
FY 2013 $22,758,753 + 6.9°k +5.0°k
FY 2014 $23,197,623 + 1 .9°k +4.9°k
FY 2015 $24,825,015 +7.0°k +3.2°k
FY 2016 $24,906,544 +0.3°k +2.6°k
FY 2017 $26,375,291 +5.9°k +1 .1 °k
FY 2018 $25,871 ,726 -1 .9°k +0.0°k
FY 2019 $25,766,328 -0.41 +1 .9°k
Avera e FY 1989-2019 + 1 .13°k +0.79°k
*Without TIF Accounting change. **Does not reflect State unfunded portion of Homestead Credit.
FY 2020 Budget and Fiscal Policy Guidelines
Page 33
IMPACT ON TAX ASKINGS AND AVERAGE RESIDENTIAL PROPERTY
To maintain the current level of service based on the previous assumptions would require
the following property tax asking increases:
. . - - - . . . � .
- � . � . - . - . .-
FY 2019 $25,766,328
FY 2020 $26,370,503 +2.3% +0.00% / +$0
FY 2021 $26,616,587 +0.9% +0.30% / +$2.30
FY 2022 $27,711,877 +4.1% +3.48% / +$26.90
FY 2023 $29,014,168 +4.7% +4.06% / +$32.46
FY 2024 $30,692,094 +5.8% +5.45% / +$45.36
GUIDELINE
The recommended guideline is no increase for the average residential property owner
assuming the Homestead Property Tax Credit is fully funded. A one percent increase in
the tax rate will generate approximately $265,942.
These guidelines include $697,351 for recurring and $478,777 for non-recurring
improvement packages.
CIP BUDGET GUIDELINES
U. INTEGRATION OF CAPITAL RESOURCES
GUIDELINE
To obtain maximum utilization, coordination and impact of all capital
improvement resources available to the City, state and federal block and
categorical capital grants and funds shall be integrated into a
comprehensive five-year Capital Improvement Program (CIP) for the City
of Dubuque.
V. INTEGRITY OF CIP PROCESS
GUIDELINE
The City shall make all capital improvements in accordance with an
adopted Capital Improvement Program (CIP). If conditions change and
projects must be added and/or removed from the CIP, the changes
require approval by the City Council.
FY 2020 Budget and Fiscal Policy Guidelines
Page 34
W. RENOVATION AND MAINTENANCE
GUIDELINE
ICapital improvement expenditures should concentrate on renovating and
maintaining existing facilities to preserve prior community investment.
X. NEW CAPITAL FACILITIES
GUIDELINE
Construction of new or expanded facilities which would result in new or substantially
increased operating costs will be considered only if:
1) their necessity has been clearly demonstrated
2) their operating cost estimates and plans for providing those operating costs
have been developed
3) they can be financed in the long term; and 4) they can be coordinated and
supported within the entire system.
Y. COOPERATIVE PROJECTS
GUIDELINE
Increased efforts should be undertaken to enter mutually beneficial cooperative
capital improvement projects with the county, school district and private groups.
Examples include cost-sharing to develop joint-use facilities and cost-sharing to
improve roads and bridges are examples.
Z. USE OF GENERAL OBLIGATION BONDS
DISCUSSION
The lowa Constitution limits the General Obligation debt of any city to 5°k of the actual
value of the taxable property within the city. The lowa legislature has determined that the
value for calculating the debt limit shall be the actual value of the taxable property prior to
any "rollback" mandated by state statute.
On October 15, 2012, the City Council adopted a formal Debt Management Policy for the
City of Dubuque. Prior to adoption of the formal policy, the City had already been
practicing much of the policy, although the formal policy included some new additions. The
most significant components of the Debt Management Policy include an internal policy of
maintaining the City's general obligation outstanding debt at no more than 95°k (except as
a result of disasters) of the limit prescribed by the State constitution as of June 30th of
each year. It is projected as of June 30, 2019 the City will be at 56.40°k. City will not use
short-term borrowing to finance operating needs except in the case of an extreme financial
emergency which is beyond its control or reasonable ability to forecast. Currently there is
no such debt, and none will be recommended in this process.
FY 2020 Budget and Fiscal Policy Guidelines
Page 35
Bond Financing Stipulations
o Recognizing that bond issuance costs (bond counsel, bond rating, and financial
management fees) add to the total interest costs of financing:
o Bond financing should not be used if the aggregate cost of projects to be financed
by the bond issue is less than $500,000
o City will consider long-term financing for the construction, acquisition, maintenance,
replacement, or expansion of physical assets (including land) only if they have a
useful life of at least six years
o City shall strive to repay 20 percent of the principal amount of its general obligation
debt within five years and at least 40 percent within ten years.
o The City shall strive to repay 40 percent of the principal amount of its revenue debt
within ten years.
Debt Service Payments
Total annual debt service payments on all outstanding debt of the City shall not exceed
25°k of total annual receipts across all the City's funds. As of June 30, 2019, it is projected
the City will be at 16.21 °k.
Internal Reserve
It shall be the goal of the City to establish an internal reserve equal to maximum annual
debt service on future general obligation bonds issued that are to be abated by revenues
and not paid from ad-valorem property taxes in the debt service fund. This shall begin with
debt issued after July 1 , 2013. This reserve shall be established by the fund or revenue
source that expects to abate the levy, and shall be carried in said fund or revenue source
on the balance sheet as a restricted reserve. This reserve does not exist now, except
where required by bond covenants. This internal reserve would be implemented by adding
the cost of the reserve to each debt issuance.
General Obligation Debt
FY 2019 Debt Limit: The FY 2017 assessable value of the community for calculating the
statutory debt limit is $4,430,255,110, which at 5°k, indicates a total General Obligation
debt capacity of$212,512,756.
Based on Outstanding G.O. debt (including tax increment debt, remaining payments
on economic development TIF rebates, and general fund lease agreement) on June
30, 2019 will be $129,940,743 (56.40% of the statutory debt limit) leaving an available
debt capacity of $96,572,012 (43.60%). In FY 2018 the City was at 63.42% of statutory
debt limit, so 56.40% in FY 2019 is a 7.02 percent decrease in use of the statutory
debt limit.
It should be noted that most of the City of Dubuque's outstanding debt is not paid for with
property taxes (except TIF), but is abated from other revenues. Exceptions include one
issuance for the replacement of a Fire Pumper truck in the amount of$1 ,410,000 with debt
service of$87,708 in FY 2019 and one issuance for the franchise fee litigation settlement
in the amount of$2,800,000 with debt service of$205,306 in FY 2019. Included in the debt
FY 2020 Budget and Fiscal Policy Guidelines
Page 36
is $9,640,109 of property tax rebates to businesses creating and retaining jobs and
investing in their businesses.
Statutory Debt Limit
. � - . � . . � - . . - . , � - .
- . � - . - .
2018 $209,048,707 $132,575,900 63.42%
2019 $221,512,756 $124,940,743 56.40%
Statutory Debt Limit Used
(as of June 30th)
100°/a
90% o
90°/a ,
90% ffi°�a
80°/a I 79% 79%
° 74%
70%
70% " io
69%
66%
6�% '` 63% a
62/e
50°/a .'� 5&%
51%
40°/a ' o
41%
37%
30% o
31°/a
27%
20% ' o
20%
10°�a -.. , : . � . . . , . . . ..
FY 15 FY 76 FY 77 FY 78 FY 19 FY 20 FY 21 FY 22 FY 23 FY 24 FY 25 FY 26 FY 27 � FY 2S
�FV19Adop[ed ��FY16Adop[ed
The City also has debt that is not subject to the statutory debt limit. This debt
includes revenue bonds. Outstanding revenue bonds payable by water, sewer and
stormwater fees on June 30, 2019 will have a balance of $141,390,905. The total
City indebtedness as of June 30, 2019, is projected to be $266,331,648. The total
City indebtedness as of June 30, 2018, was $271,788,100. In FY 2019, the City
will have a projected $5,456,452 (-2.0%) less in debt. The City is using debt to
accomplish necessary projects and to take advantage of the attractive interest rates
in the current market.
FY 2020 Budget and Fiscal Policy Guidelines
Page 37
Total Debt
�309., (In Millions)
o $310
� � $290.1 .
$290
$270 $281.3 _;"� $267.4
$271.8 ���'���n'� $255.9
$266.3 $265.0
$2$0 - . .
$253.0
$230 226.2
$210 221.6
$190 $207.3
$140.7
$170
$172.8
$150 -
$154.8
$130 , , �,
FY 75 FY 16 FY 17 FY 18 PY 19 FY 20 FY 21 FY 22 FY 23 FY 24 FY 25 FY 26 FY 27 FY28
�FY19Adop[ed �FY16Adop[ed
Part of the City's FY 2014 debt was in the form of a grant from the lowa Flood
Mitigation Program. Through a new state program, the City is able to issue $28.25
million in revenue bonds payable from the 5 percent State Sales Tax increment for
projects in the Bee Branch Watershed allowing the City to complete the Bee Branch
Creek Restoration, construct permeable alleys, replace the Bee Branch flood gates,
complete North End Storm Sewers, construct a Flood Control Maintenance Facility,
install Water Plant Flood Control and complete 17t" Street Storm Sewer over the
next twenty years.
The FY 2020-2024 Capital Improvement Program is currently being reviewed and
balanced, so there are no revised Fiscal Year 2020 debt projections yet. The FY
2019 debt projections do not include any general obligation debt related to
the Five Flags Civic Center renovation.
As we approach the preparation of the FY 2020-2024 Capital Improvement Program
(CI P) the challenge is not the City's capacity to borrow money but (a) how to
identify, limit, and prioritize projects which justify the interest payments and; (b) how
to balance high-priority projects against their impact on the property tax rate.
GUIDELINE
There are many high priority capital improvement projects which must be
constructed during the FY 2020-2024 period. The reductions in DRA rent and
distribution over the years may impact the need to borrow for projects. As in the
past, debt will be required on several major capital projects, including the Bee
Branch Watershed Project, Airport Improvements, Park Improvements, Sidewalk
and Street Improvements, Sanitary Sewer Fund, Parking Fund, and Water Fund. In
FY 2020-2024 borrowings will also include smaller projects and equipment
FY 2020 Budget and Fiscal Policy Guidelines
Page 38
replacements such as Park developments and Public Works equipment. These
smaller borrowings will be for a term not exceeding the life of the asset and not less
than six years in accordance to the Debt Management Policy. Alternative sources of
funds will always be evaluated (i.e. State Revolving Loan Funds) to maintain the
lowest debt service costs.
AA. ROAD USE TAX FUND
DISCUSSION
Actual Road Use Tax Fund receipts are as follows:
Road Use Tax
FY 2018 $7,353,913
FY 2017 $7,155,269
FY 2016 $7,122,738
FY 2015 $5,993,239
FY 2014 $5,755,518
FY 2013 $5,521,744
FY 2012 $5,469,256
FY 2011 $5,253,650
FY 2010 $5,105,327
FY 2009 $4,788,633
FY 2008 $4,944,336
$1,000,000 $2,500,000 $4,000,000 $5,500,000 $7,000,000 $8,500,000
■Road Use Tax
The FY 2019 budget was based on receiving $7,353,339 in Road Use Tax funds. In
FY 2019, 100°k of the Road Use Tax income is in the operating budget. The State
of lowa increased the gas tax 10 cents per gallon in FY 2016.
With increases in City DMATS and State Road Use Tax funds, the City will be able
to substantially add to the number of street lights, ensure the Southwest Arterial
project continues to move forward and continue with major road improvements such
as North Cascade Road, Central Avenue, and White Street.
GUIDELINE
It is preferable to shift Road Use Tax funds to the capital budget for street
maintenance and repair to reduce the need to borrow funds for routine street
maintenance and improvements. This shift cannot occur until there are increased
revenues or reduced expense that would allow this shift without a property tax
impact.
FY 2020 Budget and Fiscal Policy Guidelines
Page 39
BB. COMMERCIAL AND INDUSTRIAL DEVELOPMENT
GUIDELINE
Current City, commercial and industrial development efforts should be continued to
(a) preserve current jobs and create new job opportunities and (b) enlarge and
diversify the economic base. Financing these efforts and programs should continue
to be a high priority.
CC. HOUSING
GUIDELINE
To maintain an adequate supply of safe and decent housing, the City should strive
to preserve existing single family and rental housing that is not substandard and
provide opportunities for development of new housing, including owner occupied,
within the City's corporate limits for all citizens, particularly for people of low and
moderate income. Workforce rental housing is becoming increasingly important and
the City provides incentives for building rehabilitations.
DD. SALES TAX
GUIDELINE
Sales Tax revenue shall be used according to the following split:
� Sales Tax 30%:
/ (a) the reduction by at least 75 percent of
street special assessments
(b) the maintenance and repair of streets
Sales Tax 50%: 30%
Property Tax Relief 50%
a
(
20%
\
Sales Tax 20%:
(a) the upkeep of City-owned property such as sidewalks,
steps, storm sewers, walls, curbs, traffic signals and signs,
bridges and buildings and facilities (e.g., Airport, Five
Flags Center, Library, Law Enforcement Center, City Hall,
fire stations, parks and swimming pools)
(b) Transit equipment such as buses
(c) riverfront and wetland development; and (d) economic
development projects
FY 2020 Budget and Fiscal Policy Guidelines
Page 40
EE. NET CASH PROCEEDS (SURPLUS DISTRIBUTION) FROM THE DUBUQUE
RACING ASSOCIATION
DISCUSSION
The contract with the Dubuque Racing Association calls for distribution at the end of its
fiscal year, December 31 S�, of 50 percent of its net cash operating funds to the City of
Dubuque. In early-February, the City receives payment of proceeds to be distributed.
These proceeds are then allocated for capital improvements, with the highest priority given
to reducing the City's annual borrowing.
The Dubuque Racing Association provides the City with projections of future distributions.
Since gaming is a highly volatile industry, the estimates are discounted prior to including
them in the City's Five-Year CIP.
Consistent with past use of DRA distributions, 100°k of the February 2020 projections of
operating surplus have been anticipated as resources to support the Fiscal Year 2020
capital improvement projects. The estimates received from the DRA will be reduced by 5
percent for FY 2022 resources, 10 percent for FY 2023, and 15 percent for FY 2024
resources, to provide a margin of error in case the estimates are not realized.
GUIDELINE
In Fiscal Year 2020, the City anticipates distribution of a significant amount of net
cash proceeds for use in the Capital Improvement Program. These amounts will be
budgeted in the Five-Year CIP in the year they are received and will be used to
reduce required General Obligation borrowing. The three out-years will be
discounted by 5 percent, 10 percent, and 15 percent respectively.
FF. EMPHASIS ON INITIATIVES THAT REDUCE FUTURE OPERATING BUDGET
EXPENSE
GUIDELINE
Capital improvement expenditures that will reduce future maintenance and
operating expense will receive priority funding and these types of initiatives will be
encouraged in all departments and funding sources as a means of maximizing the
use of available resources. This emphasis reflects fiscally responsible long-range
planning efforts.
GG. USE OF GAMING-RELATED RECEIPTS
GUIDELINE
On April 1 , 2004, a new lease took effect with the Dubuque Racing Association for
lease of the Dubuque Greyhound Park and Casino. This new lease was negotiated
after the FY 2005 budget was approved and raised the lease payment from YZ°k of
coin-in to 1°k of coin-in. This new lease and the expansion of gaming at Dubuque
FY 2020 Budget and Fiscal Policy Guidelines
Page 41
Greyhound Park and Casino, from 600 gaming positions to 1 ,000 gaming positions,
effective August 1 , 2005, provided additional revenues to the City of Dubuque.
The following shows the historical split of DRA gaming taxes and rents between the
City's operating and capital budgets:
Split of DRA Gaming Taxes & Rents between
Operating & Capital Budgets
Operating ■Capital
100% 50% 25% 24% 15%13.5% 10% 3% 0% 1% 3% 4% 4% 5% 6% 7% 8%
I I ' ' , � � � � � � � � .
90%
80%
70%
60%
50% q�% 100% 99% 97% 96% 96% 95% 94% 93% 92%
85%86.5%90%
40% 75% 76%
30% . . .
50% �
20%
10%
0%
`Y � � �y� �L�\ �L�� �L1� *� �L�1 �L1$ �19 �LryO `�1 �ry �ry� `C'b
c� c� c� � , c� c� c� �y`�1b c� c� c� c� c� c� t� c�
Notable Changes:
"FY 2010 The operating portion of the split now includes the debt service required
on the 2002 general obligation bonds for the America's River Project that was
previously considered as part of the capital portion of the DRA lease. Debt
obligations are considered a continuing annual expense and are more accurately
reflected as part of the operating portion of the DRA lease.
""FY 2016 A reduction in revenue in the Greater powntown TIF urban renewal area
resulted in reduced revenues to make debt payments and it was necessary for the
general fund to support $84,104 in FY 2015 and $78,242 in FY 2016 of debt service
payments, which were funded by reducing the amount of gaming revenues from
taxes and DRA lease that goes to capital recommended in FY 2016.
The Diamond Jo expanded to a land-based barge casino facility and increased to
1 ,100 slots on December 1 , 2008. This expansion was projected to decrease the Q
gaming market and correspondingly the coin-in by just over 21 percent. Based on
the projected market share loss, the City did not receive a distribution of cash flows
from the Dubuque Racing Association (DRA) in Fiscal Years 2009 and 2010.
FY 2020 Budget and Fiscal Policy Guidelines
Page 42
DRA distributions restarted in FY 2011 instead of the projected year of FY 2012.
The reduction in the DRA's market impacts the City's lease payment from the DRA.
The current lease requires the DRA to pay the City 1 percent of coin in from slot
machines and 4.8 percent of gross revenue from table games. The following chart
shows the impact of the reduction of lease payments on the City's five-year
projections based on revised projections from the DRA each year:
� . . - �
� �
. .
2009-2013 -$7,000,000
2010-2014 -$4,800,000
2011-2015 -$1 ,000,000
2012-2016 -$3,200,000
2013-2017 -$2,900,000
2014-2018 No Chan e
2015-2019 -$3,200,000
2016-2020 -$3,100,000
2017-2021 -$1 ,300,000
2018-2022 -$1 ,400,000
2019-2023 +$308,076
2020-2024 +$131 ,141
Total Im act -$27.5 million
From FY 2009 thru FY 2024, the City's lease payments have been reduced
$27.5 million.
In Calendar Year 2018, gross gaming revenues at the Q Casino is up 4°k and the
Diamond Jo is up 1 °k. Overall, the Dubuque gaming market is up 2.2°k for Calendar
Year 2018. Q Casino's increase is due to the hotel renovation, new restaurant
(Farmhouse), and new gaming product and entertainment mix. The DRA has
projected a 1 °k increase in gross gaming revenue for Calendar Year 2019.
The State of Illinois passed a Video Gaming Act on July 13, 2009 that legalized the
use of Video Gaming Terminals in liquor licensed establishments including bars,
restaurants, truck stops and certain fraternal and veterans' organizations. In the part
of Illinois that affects the Dubuque market, the first year of operation of video
gaming terminals generated $1 million in revenue monthly. The use of video gaming
terminals has now grown to $9.4 million monthly for the five counties closest to
Dubuque and in a direct line with Rockford, IL, which has limited revenue to the
gaming market in Dubuque. The Q Casino and Diamond Jo Casino average
monthly revenue is $10.8 million. The number VGT machines have increase by
84°k since 2013. The five counties in Illinois had 1037 machines in 2013 and
currently have 1906 machines. Currently, Q Casino has 833 Slot Machines and
Diamond Jo has 916 for a total of 1 ,749 or 9°k less. This is a similar impact of
building approximately two more casinos halfway between Dubuque and Rockford.
FY 2020 Budget and Fiscal Policy Guidelines
Page 43
The revised DRA gaming projections include minimal growth in revenues over the
next five years with a growth rate of 1°k in FY 2020 and FY 2021 and a growth rate
of 0°k in FY 2022 and beyond.
The 50¢ per patron tax previously received from the Diamond Jo was replaced by a
$500,000 fixed payment based on their revised parking agreement which expires
June 16, 2029. The riverboat related tax on bets increased from $330,429 in FY
2018 to $341 ,750 in FY 2020.