RES NO. 2019-07 (FORMERLY RESOLUTION NO. 2018-38), UPDATING FINANCIAL POLICIES RELATING TO USE OF TRANSPORTATION BENEFIT FUND FEE INCREASERESOLUTION NO. 2019-07
A RESOLUTION of the City of Bainbridge Island, Washington,
updating the City's consolidated set of financial and budget
policies to provide direction on eligible spending to be supported
with Transportation Benefit Fund revenues.
WHEREAS, the City Council ("Council") is responsible for setting financial policy for
the City of Bainbridge Island ("City"); and
WHEREAS, state law, including Chapter 35A.33 RCW, provides guidance for budgets
in Code Cities; and
WHEREAS, in accordance with Chapter 35A.34 RCW and Chapter 2.82 BIMC, the City
prepares a biennial budget with a mid -biennial review; and
WHEREAS, the Council wishes to update the City's consolidated set of Financial and
Budget Policies ("Financial Policies") guiding Council action, which Financial Policies are
administered by the City's Administration ("Administration"); and
WHEREAS, the Council desires to update the Financial Policies to provide direction on
the types of eligible spending to be supported with Transportation Benefit Fund revenue as
authorized by Chapters 36.73 and 36.74 RCW; and
WHEREAS, in the past, the Council has approved policies and passed resolutions related
to Financial Policies that continue to guide City financial practices, including, but not limited to:
Resolution No. 1993-52, which establishes investment policies; Resolution No. 2008-01, which
establishes an Emergency Rainy Day Reserve Fund and a Contingency Reserve within the
General Fund; Resolution No. 2008-14, which establishes debt management policies; Resolution
No. 2010-35, which set targets for General Fund reserves; Resolution No. 2013-13, which
provides that funds from the City's utilities shall not be expended for general governmental
services; Resolution No. 2014-17, which sets a minimum fund balance policy for the General
Fund; Resolution No. 2016-20 adopting a Municipal Securities Disclosure Policy, which
establishes public disclosure rules for City -issued municipal securities; Resolution No. 2016-18,
which establishes procedures for the surplus and sale of City real property; Resolution No. 2016-
19, updating the consolidated Financial Policies; and Resolution No. 2018-07, updating the
consolidated Financial Policies.
NOW, THEREFORE, THE CITY COUNCIL OF THE CITY OF BAINBRIDGE ISLAND
DOES RESOLVE AS FOLLOWS:
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SECTION 1. PURPOSE
The primary purpose of the Financial Policies is to provide guidelines for the Council and staff to
use in making financial decisions that ensure core services are maintained and the Council's vision
for the community is achieved.
The Financial Policies guide the City to be able to withstand local and regional economic
variations, to adjust to changes in service requirements, and to respond to other changes as they
affect the community.
It is the policy of the City to maintain an excellent credit rating and assure taxpayers that the City
of Bainbridge Island is maintained in sound financial condition.
SECTION 2. OPERATING BUDGET POLICIES
The biennial budget is the City's comprehensive two-year financial plan, which supports the City's
approved programs and services.
City programs and services support achievement of the following results, as identified and
approved by the Council:
• Green, Well -Planned Community
• Healthy and Attractive Community
• Reliable Infrastructure and Connected Mobility
• Safe City
• Vibrant Economy
• Good Governance
Biennial budgets should provide for design, construction, maintenance and replacement of the
City's capital assets and equipment consistent with the Capital Facilities Plan including the related
cost for operating new assets.
The City will maintain all its assets such that it protects the City's capital investment, preserves
public safety, and minimizes future maintenance and replacement costs.
All general government current operating expenditures will be paid from current revenues and
cash carried over from prior years.
The City shall adopt a balanced budget. The City defines a balanced budget as one in which
current biennium budgeted revenues in addition to fund balances are equal to or greater than
current biennium budgeted expenditures. In addition, the City's budget shall maintain recurring
expenditures for each fund at a level less than recurring revenues for that fund.
Reports on revenues and expenditures shall be prepared monthly and provided to the Council.
Mid -year and annual reports will also be prepared and provided. These reports will also be posted
to the City's website or reporting portal.
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The City shall consider its financial capacity when making budget decisions. Staff shall deliver to
Council a ten-year Financial Capacity Analysis as part of the biennial budget process. For each
Financial Capacity Analysis, the financial assumptions shall be reasonable and shall take into
account an appropriately chosen set of inflation factors and an appropriate set of economic
projections. The Administration's chosen assumptions for revenues, expenditure inflation factors
and economic measures shall be disclosed to the Council.
SECTION 3. REVENUES
The City will strive to maintain a diverse and stable revenue stream to protect against short -run
volatility of any single revenue source.
Because revenues, especially those of the General Fund and other tax -supported funds, are
sensitive to economic changes, the City will use a conservative approach to revenue forecasting.
Departmental revenues of the tax -supported funds shall be considered unrestricted revenue of the
City — subject to any applicable legal restriction, and subject to any applicable provision of the
Financial Policies, that may apply to a particular revenue source.
Revenues from the Commercial Parking Tax shall be treated as revenues of the Street Fund.
Real Estate Excise Tax revenue shall be first applied to current capital debt service and then, to
the extent available, to other eligible expenses.
On an annual basis, Transportation Benefit Fund revenue will be distributed in the following
manner: two-thirds will be applied to eligible projects and programs under Chapters 36.73 and
36.74 RCW for preservation of the roads network, and one-third will be applied to eligible projects
and programs under Chapters 36.73 and 36.74 RCW that are specific to traffic calming and climate
change mitigation.
The City shall maintain a structure for all fees and charges where the beneficiary of the service
pays the cost of that service except to the extent that the Council has determined that provision of
the specific service in question provides a general public benefit.
On a periodic basis, Building and Development Services (B&DS) rates shall be reviewed, with a
goal of full cost recovery for the B&DS Fund.
The City will maintain water, sewer and storm water utility rates adequate to ensure that each of
these three utility funds is fully self-supporting. Additionally, for analysis and rate modeling
purposes, the proposed rates shall take into account debt service coverage commitments, if
applicable. The capacity to support identified utility reserves will also be taken in to account.
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SECTION 4. EXPENDITURES
The City budget will provide for a sustainable level of service to meet the City's identified results.
The City will maintain expenditure categories according to state statute and administrative
regulation. Capital expenditures shall meet the requirements of generally accepted accounting
principles (GAAP).
The City shall use major one-time revenue to fund capital improvements, debt reductions, or
reserves. The use of one-time revenues to fund operating expenditures is strongly discouraged.
The Council shall review the Administration's recommended plan for the allocation of City costs
to various funds as part of the biennial budget process.
As a general rule, when an expenditure is incurred for which both restricted and unrestricted fund
balance is available, the City will consider the more restricted amounts to have been spent first.
On a periodic basis, the Administration shall compare the cash compensation and the value of
benefits for City employee positions to the compensation and benefit levels to a set of comparable
employers, to provide data for potential compensation and benefit policies which may be adopted
by the Council.
SECTION 5. CAPITAL
The Capital Facilities Goals and Policies that are stated in the City's Comprehensive Plan, as
amended from time to time, are hereby included in full in the Financial Policies.
The Capital Improvement Plan and the City operating budget will be reviewed at the same time to
ensure that capital and operating needs are balanced with each other and support overall City goals.
The City shall develop a six-year plan for capital improvements and update it at least biennially.
The City will identify the estimated costs and proposed funding sources for each capital project
proposal before it is submitted to Council for approval. The City will use intergovernmental
assistance and outside resources whenever possible. In the event that a grant, or other type of
intergovernmental assistance, is identified as a funding source for a project and the outside funding
is not secured, the City will reconsider the financial viability of that project at that time.
Each individual project included in the capital improvement plan (CIP) shall have a budget with
identified contributions by fund. Each fund amount shall be distinct and cannot be transferred
without amending the CIP. Reporting will be presented at the project and fund level.
When a capital project is complete and has been capitalized in accordance with Generally Accepted
Accounting Principles, any remaining project budget appropriation authority shall lapse and all
remaining funds shall return to their original source.
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SECTION 6. RESERVES
Reserve funds enable the City to deal with unforeseen emergencies and changes in economic
conditions.
General Fund Reserves
Emergency Deserve: The City shall maintain an Emergency Reserve with a budgetary target
amount of $1.0 million. These funds shall be used only to pay for emergencies that cannot
reasonably be accommodated by current budget appropriations. These funds may be appropriated
only by a vote of not less than five (5) members of the Council or the unanimous vote of a legal
quorum. It is the Council's policy that if funds are spent from the Emergency Reserve, it should
be replenished as resources become available.
General Fund Minimum Fund Balance. The City shall maintain a minimum fund balance of 25%
of ongoing revenues in the General Fund. The General Fund minimum fund balance shall mean
the dollar amount of unencumbered fund balance, excluding any amounts held in reserves or
otherwise committed funds. This fund balance is intended to provide stability in the event of
unexpected changes to revenues or expenses.
U til Fund Reserves
Capital Contingency Reserve. Each utility fund shall maintain a separate capital contingency
reserve. Each reserve shall have a targeted level of at least one percent (1 %) of the utility system's
capital assets at net book value. The primary purpose of the reserve is to provide a ready source
of cash in case of an emergency, should a major piece of equipment or a portion of the utility's
infrastructure fail unexpectedly.
Operating Reserve --- Water and Sewer Funds. These reserves shall have a targeted level as of each
year-end of at least sixty (60) days' operating expenses. The primary purpose of the reserve is to
provide cash for operations in case of seasonal variations in revenue or expenses, or to support
operations in a year in which revenues are abnormally low.
Operating Reserve -- Storm and Surface Water Management Fund. This reserve shall have a
targeted level as of June 30 and December 31 of at least 90 days' operating expenses. The primary
purpose of the year-end reserve is to provide cash for operations during the period between the
payment of the fees, which occurs in two large payments in April and October.
Restricted Debt Reserve. To the extent that the City issues a form of debt (e.g. Revenue Bonds)
that requires the City to maintain a restricted cash reserve during the term of the debt repayment
period, the utility shall maintain a restricted reserve for such purpose. This reserve is to safeguard
the purchasers of the utility's debt and may be used to fund the final installment or last year's debt
service.
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SECTION 7. ACCOUNTING AUDITING AND FINANCIAL REPORTING
The City will establish and maintain a high standard of internal controls and accounting practices.
The City accounts and budgets for revenue and expenditures on a modified accrual basis for
general government and enterprise activities. Year-end financial statements for enterprise activities
shall use full accrual accounting.
The accounting system will maintain records on a basis consistent with accepted national standards
for local government accounting and the Washington State Auditor's Budgeting, Accounting and
Reporting System.
The annual financial statements shall conform to Generally Accepted Accounting Principles
(GAAP) and be in the form of a Comprehensive Annual Financial Report as recommended by the
Government Finance Officers Association.
A capital asset system will be maintained to identify all City assets and their location.
The City will ensure that City records are audited annually, resulting in a financial opinion. The
results of the audit will be available to the public through the City's website.
SECTION 8. DEBT
The City's Debt Policy, as it may be amended from time to time, is hereby included in the Budget
Policies.
SECTION 9, INVESTMENT
The City's Investment Policy, as it may be amended from time to time, is hereby included in the
Financial Policies.
SECTION 10. BANKING AND MONEY MANAGEMENT
Safety
The City shall engage in relationships, and conduct its business, with one or more banks,
repositories of public pooled funds, and financial institutions in a manner that avoids concentrating
City balances in a way that may expose the City to material losses in the event of an adverse
development affecting any bank or financial institution in which City assets are held.
MoneV Management
The Administration shall seek: to form relationships with banking and financial institutions that
offer the City efficient and effective tools and technologies to manage and track transactions and
balances.
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SECTION 1.1. MUNICIPAL SECURITIES DISCLOSURE
The City's Municipal Securities Disclosure Policy, as it may be amended from time to time, is
hereby included in the Financial Policies.
SECTION 12. SURPLUS REAL PROPERTY
The City's Surplus Real Property Policy, as it may be amended from time to time, is hereby
included in the Financial Policies.
SECTION 13, PROCUREMENT POLICY
The City's Procurement Policy, as it may be amended from time to time, is hereby included in the
Financial Policies.
PASSED by the City Council this 22nd day of January, 2019.
APPROVED by the Mayor this 22nd day of January, 2019.
ATTEST/AUTHENTICATE:
P
By:
4i�st�ineBrown, Cit , CMC
FILED WITH THE CITY CLERK:
PASSED BY THE CITY COUNCIL
RESOLUTION NO.:
By: �)jv(z A��- -
Kol Medina, Mayor
January 4, 2019
January 22, 2019
2019-07
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