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HomeMy WebLinkAboutItem 8.3 New Accounting StandrdsG~~~ OF Dp~~y 19' .. ~~ ,82 ~~~~~/l STAFF REPORT CITY CLERK DUBLIN CITY COUNCIL File # ^®©®-[~^~ DATE: April 20, 2010 TO: Honorable Mayor and City Councilmembers FROM: Joni Pattillo, City Manager SUBJE Informational Report On New Accounting Standards: Government Accounting Standards Board (GASB) Statement No. 54 -Designation of General Fund Reserves (Net Assets) Prepared By: Paul S. Rankin, Administrative Services Director EXECUTIVE SUMMARY: Fund Balance is the term used to describe the difference between the assets and liabilities reported in a governmental fund as part of the financial statements. The difference is labeled as "Net Assets" and becomes a measure of liquidity. Over the years the City Council has designated net assets in the General Fund for both specific and general activities. The past practice has been to do this after the close of the Fiscal Year. New accounting standards will require the City to restructure the presentation of net assets. Staff will provide an overview of key changes that will need to be examined to develop prudent policies for the recommended categorization of these funds. FINANCIAL IMPACT: The June 30, 2009 Comprehensive Annual Financial Report (CAFR) presented the current General Fund Reserved and Designated Fund Balance as $62.1 million. A restructuring of the Net Assets will be examined and presented as part of the Fiscal Year 2010 - 2011 Annual Budget and Financial Plan, based on the new accounting standards and prudent financial practices. RECOMMENDATION: Receive the report and provide any input on the key areas of proposed revision to the allocation of Fund Balance Reserves. After additional consultation with the City's Auditors and the development of policies in accordance with the new accounting standards, Staff will provide for City Council consideration a complete restructuring of the fund balance. The new format will be required to be presented in the June 30, 2011 Comprehensive Annual Financial Report. ~? . ~ ~ ~~~ Submitted By: eviewe Administrative Services Director Assistant City Manager Page 1 of 7 ITEM NO. ~ • ~ (~ DESCRIPTION: The unique aspects of government accounting sometimes results in questions of interpretation and how it financial concepts relate to more common terms. The presentation of this report relies heavily on information distributed by the Government Finance Officers Association, "What Everyone Needs To Know About The New Fund Balance," by Stephen Gauthier (2009). The presentation of Financial Statements differs significantly for government institutions compared to a private business. A private business prepares statements primarily for investors and creditors. The information is used by others to focus on the ability of the business to generate resources and typically the data is aggregated at a very high level. With some complex businesses they may provide information related to distinct individual lines of business. For the government sector the users of the statements go beyond investors and creditors to also include citizens and legislative oversight bodies. The use of the information also goes beyond the ability to generate resources, but also to assist in decisions about how resources are allocated. The segregation of revenue and expenditures into various funds also helps to ascertain legal compliance with the use of special revenue. For example, Gas Tax is accounted for in a separate fund in order to compile and report both the revenue and associated expenditures for street and roadway purposes in a single fund. In the Comprehensive Annual Financial Report (CAFR) public agencies produce a highly aggregated Government-wide Financial Statement, which is similar to private businesses. However, they must also prepare financial information at an individual fund level. Under the current accounting rules, agencies tend to focus the presentation of fund balance in terms of whether the funds could be appropriated by the governing body. The reporting allows agencies to determine whether net assets should be identified as "designated" for a particular use. This relates to a policy decision by the agency to restrict the funds from being appropriated without a change in the designation or as a contribution towards the identified use. The policy can be general and without significant description of how the use of certain funds might be triggered. There is also no requirement as to when the designation is made. Basis For Current Citv of Dublin Designations In 1993, the City Council established a general policy related to establishing General Fund Reserves and the purposes they may serve (See Attachment 1). The policy outlined potential uses for City reserves as well as the condition that appropriation and use of reserves were subject to City Council action. Over time, as the City received its annual audit and results from the previous year, additions to the reserves were sometimes segregated and identified for a specific use. During the past decade, the construction of several new and replacement community facilities (ex. Dublin Library, Senior Center, a reconstructed Shannon Center; and an expanded Heritage Park) have been funded with significant contributions from General Fund reserves. The ability to designate reserves for facilities during times when revenues exceeded expenditures allowed the City to avoid the additional cost of debt issuance for the construction of facilities. The City prudently placed designations on amounts of reserves over time and developed financing strategies that combined funding sources to undertake a variety of projects. At the same time the reserves were also designated as a form of financial protection against catastrophic loss. Reserves also play a distinct role in providing investment income which becomes an important local revenue source. Page 2 of 7 The current designations used as of the June 30, 2009 CAFR are shown on Attachment 2. This also provides a brief description of each of the fund balance designations. New Accounting Standards The Governmental Accounting Standards Board (GASB) has established new standards that will be required for all financial statements covering periods after June 30, 2010. Agencies are encouraged to implement the requirement early and the City will be well positioned to do so by considering updates to the current policy. The changes imposed by the new standards re-label the classifications and establish certain criteria assigning fund balance. GASB identified the following difficulties with the current format: Terminology (i.e. reserved, unreserved, designated) was not self explanatory and could be misunderstood by the reader. • Application was not consistent between different agencies. • Question as to whether the focus on availability served the financial statement reader. GASB uses the process of preparing technical statements and then circulating them for review and comment before they are adopted. This allows stakeholders including: auditors, government agencies, debt rating agencies and others who commonly review government financial statements to have input on the final pronouncement. GASB released the final statement on March 11, 2009. The City Comprehensive Annual Financial Report for the period ending June 30, 2011 will be required to incorporate the new requirements. Agencies may optionally implement the changes at an earlier date. The new format is organized as follows: • Anew hierarchy is established based primarily on the degree of spending constraints placed upon use of resources for specific purposes. This is vastly different than the current focus on whether the agency considered the funds available for appropriation. • 5 new presentation classifications were created. • Classifications range from nonspendable down through three levels of less binding spending constraints. • Lowest tier is an unassigned level, which is available for any spending of the government New Category Labels Used By GASB The following outline describes the five new classifications which will be allowable for presentation of reserves in upcoming financial statements: 1) Nonspendable (Inherently nonspendable based on the form of the asset or a requirement to remain in tact) Resources that by their very nature cannot be spent (e.g., prepaid rent, Inventory) Resources that are not yet available for spending (e.g., long-term portiori of loans receivable) Page 3 of 7 ^ Resources externally restricted to a purpose narrower than the fund (Cemetery Endowment) 2) Restricted (Net fund resources subject to externally enforceable legal restrictions) ^ Externally imposed by creditors (such as through debt covenants), grantors, contributors, or laws or regulations of other governments. ^ Imposed by law through constitutional provisions or enabling legislation. ^ Note that there is no need for the limitation to be narrower than the purpose of the fund. ^ Examples would include special revenue funds which have a legal restriction imposed by external sources (e.g., grant funds, gas tax, etc.) 3) Committed* (Self-imposed limitations based on formal action of governing body ^ Must occur before the end of fiscal year. ^ Can only be changed by action of Governing body. ^ Examples in this category would be similar to designations made in the past by the City Council (e.g. the establishment of a reserve to construct the Historic Park expansion, or Emerald Glen Aquatic Center scope change, etc.) 4) Assigned* (A limitation based on intended use authorization to assign may be delegated by the City Council - similar to designations expressing intent) ^ Intent would have to be established at either the highest level of decision making, or by a body (e.g., finance committee) or an official (i.e. City Manager) designated for that purpose. ^ Examples in this category would be somewhat of a change since the designations need to be made before the end of the Fiscal Year. In the past, the Staff could present recommendations for approval by the City Council after the close of the Fiscal Year. There may be appropriate items that could be delegated to Staff (City Manager or Administrative Services Director (e.g. accrued leave, carry-over appropriations, etc.) 5) Unassigned* (Available for any purpose) ^ General Fund Only ^ Any items that do not qualify in one of the earlier categories will be reported as unassigned, meaning there are no external or internal restrictions on the use of the funds. * Considered unrestricted fund balance and the focus of a fund balance policy. Page 4 of 7 City of Dublin General Fund As of June 30, 2009 A summary of the General Fund balances as shown in the last CAFR has been prepared for City Council reference (see Attachment 1). This is presented in the old format along with an explanation of current designations. Several of the designations will fluctuate from year to year based on the results from revenues and expenditures. In the case of reserves for specific projects, if the project is underway it is likely that the reserves will be used as expenditures occur. In some cases the reserves have been established to begin saving funds that can be utilized longer term for a specific goal or project. Other elements of the current designations fluctuate from year to year such as: Pre-Paid Expenditures; Balances Advanced To Other Funds; Accrued Leave Investment Market Value Adjustment; etc. Staff will be working with the Auditors to determine the appropriate categories for the existing designations. A recommendation will be presented to the City Council as part of formally implementing the requirements of GASB 54. In planning for this requirement it is appropriate for the City Council to consider potential changes in the designation currently carried for Authorized Expenditures. The City currently has a very general guiding policy for reserves which was adopted in 1993 (see Attachment 2). The document establishes that reserves shall not be considered as being readily available for appropriation. It was recognized that reserves serve an important purpose including: providing an independent source of revenue; response to unanticipated and catastrophic events; provide an opportunity to reduce or eliminate the need for debt in providing facilities. Since the adoption of the policy the General Fund Reserves have increased. This allows the City Council the ability to structure the allocation of reserves specifically into some of the key areas that have been identified in the policy. The City has been well served by taking a long-term approach and prudently taking efforts to insure long-term financial stability. As shown in Attachment 1 the City as of June 30, 2009 had a designation of $33.454 million for Authorized Expenditures. The CAFR has defined this as an amount which, although not specifically identified with an individual project, is designated for uses approved by the City Council including recovery or catastrophic losses. With the new standards imposed by GASB 54 it will be prudent for the City Council to provide input on the development of policies that will more clearly define the intent for these funds. Before the new accounting standards are fully implemented, Staff will also need to present an updated policy for the establishment and maintenance of General Fund reserves. Proposed Segregation of Reserve For Authorized Expenditures At this time Staff is presenting a proposed allocation for the $33.454 million designated as reserved for Authorized Expenditures. The goal is to continue to support the current policy goals, while aligning the designations with the requirements of GASB 54 and prudent financial planning. Fire Retiree Medical Liability (Proposed Allocation: $2,750,000) -The current reserve is $750,000, which would establish a total reserve of $3,500,000. Preliminary Actuarial studies indicate that the City has a liability in excess of $7 million. To date obligations are being funded on a pay-as-you go basis. This obligation exists for the City's share of funding for retiree medical costs. Funding the reserve does not eliminate the need to identify an on-going financing plan to fully address the obligation. Page 5 of 7 Emergency Communications Systems (Proposed Allocation: $790,000) -The current reserve is $210,000, which would establish a total reserve of $1,000,000. As part of regional efforts to establish a more effective emergency radio system, certain equipment will require replacement and updating to operate on the new network. This will also impact future operating costs to provide for replacements. Catastrophic Facility / Infrastructure Loss & City Business Recovery (Proposed Allocation: $6,850,000) -The City has essentially self insured exposure for earthquake damage to City facilities. If a catastrophic event such as an earthquake occurred, the City would need a funding source to address damage and insure the continuation of essential services. This amount represents approximately 10% of the book value for buildings as of June 30, 2009 prior to accumulated depreciation. In addition to buildings the City also maintains other infrastructure such as roads and bridges which are also vulnerable to catastrophic events. There are currently no funds allocated specifically for this purpose. City Facility Internal Service Funds - (Proposed Allocation: $3,000,000) -The City has added several new facilities which are not currently part of the Internal Service Fund annual charges for major equipment replacement. This includes Shannon Center, Senior Center, Library, and Fire Stations 17 and 18. In addition the City has older facilities such as the Dublin Swim Center and Parks facilities which do not have a reserve funding source for the replacement and upgrading of equipment and systems. Providing additional funding to the reserves does not eliminate the need to identify an on-going financing plan to regularly fund the replacements as new facilities are brought on-line. There are currently no funds allocated specifically for this purpose. Unrestricted For Cash Flow Purposes - (Proposed Allocation: $8,860,000) -The Government Finance Officers Association recommends at a minimum a government have available two months of operating revenues or operating expenditures. Depending on the volatility of these factors it may be considered prudent to have a goal to ultimately fund the equivalent of four months. The proposed designation represents approximately two months of the Fiscal Year 2009/2010 Operating Expenditures. In addition to providing general cash flow for the lag in receipts such as Property Taxes, this also provides a cushion for the cash flow needs required to take advantage of Grant Reimbursements which occur after expenditures. There are currently no funds allocated specifically for this purpose. Service Continuity Obligations - (Proposed Allocation: $1,000,000) -For some City Services there can be a significant timing difference between the collection of the fees and the provision of the services. An example is the issuance of a Building Permit for a large complex project. Although the fees are collected in one year the inspection costs can occur over as much as two years after the fees are collected. This reserve would provide a bridge to address the continuation of services at times when the development cycle is especially volatile. There are currently no funds allocated specifically for this purpose. Innovation & New Opportunities - (Proposed Allocation: $10,125,000) -Anew reserve is proposed to allow the City to have a source of funds to address potential needs that may have an up front cost to the City, but would provide additional benefits such as reduced operating costs. Staff will develop guidelines for the use of these reserves and it is anticipated that it would only occur with the approval by the City Council to appropriate the funds. There are currently no funds allocated specifically for this purpose. Page 6 of 7 Next Steps This report has outlined the broad designation of the City Reserve Funds. Staff will work with the City Auditors to identify the best approach to account for these changes. In some cases it may be appropriate to transfer balances to other funds. Staff will also need to address the development of policies that describe the allocations and how they are accessed, including any hierarchy. It will also be necessary to address under GASB 54 the authority for adjusting the reserves. Once the policies are drafted a comprehensive item will be presented to the City Council for consideration. NOTICING REQUIREMENTS/PUBLIC OUTREACH: None ATTACHMENTS: 1. Summary of General Fund Reserves As of June 30, 2009 2. Resolution 80-93 Establishing A Policy For Management And Use Of General Fund Assets Page 7 of 7 ~~5 CITY OF DUBLIN SUMMARY GENERAL FUND BALANCE AS OF JUNE 30, 2009 (Data Shown On Page 42 City of Dublin CAFR -Descriptions Added For This Presentation) Balance 6/30/2009 2008-2009 DESCRIPTION RESERVED Prepaid Expenditures 57,531 Items paid for prior to 6/30/2009 for goods and services that will be used in the followin fiscal ear. When the City acquired the Dublin Cemetery, the Cemetery Cemetery endowment 60,000 Association transferred its endowment to the City. The actual costs exceed interest earned from this balance. Stormwater Maintenance 103 520 The City has accepted funds from CalTrans to offset the , future maintenance of s ecial storm drain inlets. A major underground stormwater culvert was constructed in Culvert Maintenance 335 728 Dublin Ranch. The City entered into an agreement to , maintain the line, based on a lump sum deposit that along with interest could offset future maintenance costs. The General Fund made a long term advance to fund Fire Advance (Fire Impact Fees) 1,841,336 Station No. 17. The advance is to be repaid with interest based on Impact Fees collected. CaIPERS pooled employers of less than 100 employees, and any agency liability at that time was recorded in a "side- Advance (PERS Side Fund) 2,945,495 fund". The City elected to pre-pay its obligation from reserves and an internal service charge is made each year to re a the Reserves. Sub-Total Reserved 6/30/2009 5,343,610 I,~m 8.3 y-z ATTACHMENT ~I a~~i UNRESERVED- /Desianated for: Economic Stability 5,868,847 Reserve established to allow for a balanced budget during in the event of economic uncertain As part of the 2000/2001 Budget the City Council directed Staff to combine separate reserves for open space and Downtown /Open Space 1,378,235 downtown improvements into a single reserve. Some of the funds were expended on Village Parkway downtown im rovements. Funds originally budgeted in Fiscal Year 2008!2009 for CIP Carryovers 1,306,322 Capital projects which were started, but not completed. The carry-over eliminates the need to fund the projects from current revenue. During Fiscal Year 2008-2009 there were key program Operating Carry-overs 301,874 expenditures that were unable to be completed. The carry- overeliminates the need to fund the expenditures from current revenue. Prior to establishing the current Affordable Housing Fee, the Affordable Housing 1,000,000 City Council established a reserve to be used for future Affordable Housin activities. As the Civic Center approached 20 years old and with the growth in population the City Council has studied plans to expand in order to accommodate the provision of services to Civic Center Expansion 1,176,405 a growing community. Although project costs to accommodate new growth may be added to impact fee programs, the City Council designated a General Fund reserve to fund design and an initial phase of high priority im rovements. In 2009 the City Council proceeded with the construction of Fallon Sports Park by awarding the construction contract. Fallon Sports Park Public Facility 4 221 930 At the time of award Staff noted that if Public facility Fees Fee Advance , , did not materialize there would be a need for an advance from the General Fund, to be repaid from future fees with interest. This is the estimated advance re uired. Historic Park Development 2,235,658 Reserve for the development of the expanded Historic park which is under contract. Future Maintenance Facility 750,625 Reserve to rehabilitate the 84 Lumber site for use as a Maintenance Facili Reserve for costs anticipated for radio replacements Emergency Communications 210 000 required with the development of an emergency System , communications system (Police, Fire, Public Works fre uencies in a re Tonal effort to standardize . Fire Retiree Medical 750 00 Reserve for future retiree medical benefits. Estimates of the , full cost is over $7 million. Emerald Glen Rec 8~ Aquatic Reserve to allow for a scope features to be added to a new Center Scope Change 1,000,000 aquatic center. The features are beyond what was described in the Master Plan and fee ro ram. Accrued Leave 791 582 The represents the value of the obligation for accrued leave , benefits as of June 30, 2009. Accounting standards require the financial statements to show all investments at market value as of June 30, 2009. Investment Market Value 2 334 061 The market value exceeded the face value of the Adjustment , , investments. This gain was never realized and therefore, it is important to reserve fund balance as the revenue from n unrealized ain is not available fora ro riation. The amount which although not specifically identified with an Authorized Expenditures 33,454,209 individual project, is designated for uses approved by the City Council including recovery from catastrophic or uninsured losses, etc. Sub-Total Unreserved / Desi Hated 6/30/2009 56,779,748 Total Fund Equity General Fund 62,123,358 3 "d5 RESOLUTION NO. 80 - 93 A RESOLUTION OF THE CITY COUNCIL OF THE CITY OF DUBLIN **~r**irir~lr**~r~t**** ESTABLISHING A POLICY FOR MANAGII~NT AND USE OF GENERAL FUND ASSETS WI~REAS, the City Council of the City of Dublin recognizes the importance of General Fund Reserves; and WHEREAS, General Fund Reserves are an important asset of the City and it is prudent to have an established policy to guide their use; and WHEREAS, typically, General Fund monies are a discretionary funding source which can be appropriated as enacted through the annual budget process; and WHEREAS, interest earnings from City General Fund Reserves can provide an independent local revenue source; and WHEREAS, it is not possible to exactly predict over time how economic conditions may impact either the interest earnings (income) or the need to utilize reserves to provide the level of municipal services deemed adequate by City Council policy; and WHEREAS, prudent management would dictate that the City have a general policy for the management of its assets, including the anticipated purpose of General Fund Reserves. NOW, TI~REFORE, BE IT RESOLVED that the City Council of the City of Dublin does hereby establish the attached Policy for the Management and Use of General Fund Reserves (Exhibit A), attached hereto and by reference made a part hereof. BE IT FURTHER RESOLVED that City Staff are hereby authorized and directed to undertake all administrative steps necessary to implement said "Policy" and present periodic reports to the City Council. PASSED, APPROVED AND ADOPTED this 14th day of June, 1993. AYES: Councilmembers Burton, Houston, Howard, and Mayor Snyder NOES: None ABSENT: Councilmember Moffatt ABSTAIN: None ayor ATTEST: n ~-I~ i Cler PSR/lss a:Reso80. a#12: ATTACHMENT Z 465 BXHIBIT A CITY OF DIIBLIN GENERAL FIIND RESERVE POLICY PURPOSE The purpose of this document is to formally outline the City Council policy of maintaining General Fund Reserves and designating the potential types of uses fox such reserves. General Fund Reserves shall not be considered as being readily available for appropriations towards operating expenses, except as allowed for in this policy and through explicit action by the City Council. AMOUNT OF RESERVES The amount of General Fund Reserves will fluctuate over time. The City Council recognizes that there are numerous events which could place a legitimate demand on the reserves. INTEREST EARNINGS All interest earnings on the General Fund Reserves shall accrue to the City's General Fund Unreserved Fund Balance, for appropriation by the City Council in accordance with local and State laws, regulations and policies. ABILITY TO ACCOMMODATE CITY NEEDS The City Council recognizes the importance of maintaining flexibility at this time as well as in the future. Proper maintenance of the City's General Fund Reserves will accommodate a response to economic conditions affecting earnings on said funds as well as unanticipated events which require an appropriation. POTENTIAL USE OF RESERVES Any appropriation of General Fund Reserves is subject to action by the City Council. The following events are the basis for a policy to protect and carefully plan for any expenditure from General Fund Reserves: ^ City Indebtedness: Reserves may be utilized to reduce or eliminate the need for current or future debt service payments. The limitation of debt service as an annual operating expense allows for available monies to be expended for other public purposes. This shall be considered the highest priority for the use of General Fund Reserves. ^ Economic Uncertainty: A prudent reserve can be used to finance municipal services in the event that economic conditions have deteriorated to the extent .that traditional revenue sources can no longer support the services. 5~j5 ^ Response to Reductions in Revenues: In recent years, State Government has taken revenues which were previously considered to be 2oca1 revenues. Development of a locally controlled revenue source can be important. ^ Catastrophic Loss: The City currently participates in a pooled self-insured liability and property program. A catastrophic event may require additional appropriations in order to attain a full recovery. ^ Preservation of Funds as Revenue Generator: The preservation of General Fund Reserves provides revenue as a result of investment income. This is an important discretionary income source. ^ Economic Development Stimulus: A locally controlled funding source could become one component of an investment plan, which would provide a positive return to the City and a public benefit. This listing is not intended to be all inclusive; however, it is generally reflective of the types of considerations to be made when proposing the use of such funds. Proposed uses which are inconsistent with this policy should demonstrate a public benefit and a finding that it is in the best interest of the City. R$vISIONS Revisions to this policy shall be approved by the City Council in the form of a Resolution. PSR/lss a:FuxlExbA.agendaS12