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Minutes - 10/25/2006 - Committee of the WholeMINUTES OF THE OCTOBER 25, 2006 SPECIAL COMMITTEE OF THE WHOLE MEETING OF THE PRESIDENT AND BOARD OF TRUSTEES OF THE VILLAGE OF OAK BROOK APPROVED AS AMENDED BY THE VILLAGE BOARD ON JANUARY 9, 2007. I. CALL TO ORDER: The Special Committee of the Whole Meeting of the Village Board of Trustees was called to order by President Quinlan in the Samuel E Dean Board Room of the Butler Government Center at 10:10 a.m. 2. ROLL CALL: Village Clerk Linda Gonnella called the roll with the following persons PRESENT: President Kevin M. Quinlan, Trustees Jeffrey Kennedy, Kathryn Manofsky, Robert Sanford and Asif Yusuf. ABSENT: Trustees Stelios Aktipis and John Craig. IN ATTENDANCE: Richard B. Boehm, Village Manager; Jeffrey P. Moline, Assistant Village Manager; James Bodony, Fire Chief; Dale L. Durfey, Jr., Village Engineer; Bruce F. Kapff, Director of Information Services & Purchasing; Robert L. Kallien, Jr., Director of Community Development; Darrell J. Langlois, Finance Director; Margaret Klinkow Hartmann, Library Director; Michael J. Meranda, Public Works Director; Nelson Patras, Bath & Tennis Club Operations Manager; Thomas Sheahan, Chief of Police; Stephen Larson, Deputy Police Chief; Trey VanDyke, Golf Club Manager and Sharon Dangles, Accounting Manager. President Quinlan suggested that since this was an informal working meeting, that the formal Roberts Rules of Order be suspended. He also reminded the audience in attendance that this is a working meeting held in the open, however no interaction with the public is deemed appropriate at a meeting of this nature. He announced that there were two major topics to be discussed and he explained that the object of the evening was the beginning of the budget process and the Board would discuss the general policy, direction and strategy that they felt should be included in the budget preparation. He indicated that most of the meeting would be conducted by Finance Director Darrell Langlois. President Quinlan complimented Director Langlois on the work he and his staff did in preparing the Board for this meeting. Village Manager Boehm began by indicating that the Village was in good financial condition and that all of the departments had worked diligently to put together the outline prepared for the Board. He added that the Village would be able to continue COMMITTEE -OF- THE -WHOLE Minutes Page I of I 1 October 25, 2006 2. with its high level of service and there were some organizational structure changes that would lead to a higher level of service in the future. There were several issues that had an effect on the budget, one being the funding of the I -88 and 22 "d Street bridge obligation. He explained that in the past the Village entered into an agreement with the Illinois Department of Transportation (IDOT) which contractually obligated the Village to fund a third of the cost of widening the I -88 bridge deck and the 22 "d Street roadway underneath It is estimated that the project will be approximately a $15 million project making the Village's obligation approximately $5 million. He added that as part of the reconstruction, the Hitchcock Design Group who is working with the Village on its Beautification Project will also work with IDOT to enhance the bridge. The Board was then presented the following options. 3. FINANCING OF VILLAGE SHARE OF 22ND STREET WIDENING UNDER I -88 The Village is contractually obligated to fund one -third of the cost of widening the I- 88/22nd Street bridge. At the present time the Village's obligation is expected to be approximately $5 million. In advance of finalizing the 2007 Budget, it is critical that a conceptual framework be established as to how the Board intends to fund this large financial obligation. At the present time all road projects are financed by the Infrastructure Fund. The main funding source of this fund is the 0.25% non -home rule sales tax, which for 2007 is expected to be $2,675,000. In addition, Motor Fuel Tax funds, which amount to approximately $254,000 annually, are utilized to supplement the non -home rule sales tax as a funding source for infrastructure. Also, since the payroll costs related to Public Works and Engineering are charged to this fund and in fact benefit several other funds (General Fund, Water Fund, and Garage Fund), transfers are made to reimburse the Infrastructure Fund for these costs. For 2007, these transfers amount to $403,300. Finally, interest income totaling $25,000 is expected for 2007. In total, this results in total revenue of $3,357,300. In the future, these revenues are expected to increase by an inflationary amount in addition to some growth from the Promenade. On the expense side, the Infrastructure Fund supports the normal operating costs of Public Works (excluding Buildings and Grounds and Forestry), Engineering, and all infrastructure projects (roadways, drainage, and safety pathways). The infrastructure projects are planned for and prioritized as part of a separate ten -year Roadway Maintenance Plan as prepared by the Engineering Department. For 2007 the operating costs of Public Works and Engineering are tentatively budgeted at $2,318,650. This would leave $15038,650 available for infrastructure projects. In 2008 through 2011 it is expected that approximately $1.2 to $1.4 million will be available to annually fund infrastructure. A potential partial funding source would be to move the annual paving program back one or two years and use funds normally set aside for local streets for the I- 88/22nd COMMITTEE -OF- THE -WHOLE Minutes Page 2 of 11 October 25, 2006 3. Street bridge project. Essentially, this would cancel and defer the paving program in those years. Since the inception of the Infrastructure Fund in 1992, the Village has spent a total of $23 million or $1.5 million annually on infrastructure maintenance and replacement and has never taken a year off. In the opinion of the Village Engineer, while this would possibly increase the cost of some maintenance (such as patching, etc.), this would only postpone the maintenance schedule resulting in slightly worse pavement conditions. The current 15 year resurfacing schedule is more aggressive than most other municipalities. Going into the 2007 budget, the Village has commitments to spend funds on two safety pathway projects and has gone through the process of engineering for the 2007 paving program. Staff is therefore recommending going forward with the 2007 program as planned. In order to free up funds for the I- 88/22nd Street project, staff is proposing to possibly eliminate the paving program in 2008 and also possibly eliminating or making significant reductions in the paving program for 2009. Due to the size of the obligation and assuming the Board does not want to lower the six month cash reserve policy in the General Corporate Fund, it will be nearly impossible to fund this obligation without some amount of debt financing. Debt financing is used by many other jurisdictions for large capital projects and although the cost increases due to having to pay interest, the cost is spread out over future years and is paid for by the actual users of the improvement. In presenting the following options, the following assumptions have been made: -an initial down payment of $1,000,000 would be made to the Tollway sometime in 2007. -the remaining balance of $4,000,000 is required to be paid at the end of the project in 2009. - non -home rule sales tax revenue growth is limited to inflation plus developer assumptions relative to the Promenade. -an interest rate of 4.5% on any debt issued with a 15 year amortization period (the current AA G.O. rate is approximately 4.25 %). It is unknown what the actual rate would be in 2009, and changes in rates could significantly impact the options presented. The following options were offered as a means to fund the obligation. Option 1 -100% debt financing In this option, a $1,000,000 obligation is issued in 2007 and $4,000,000 in 2009. After the second obligation is issued, a balance of approximately $4.9 million would remain and the annual debt service requirement for 2010 and thereafter would be approximately $465,000. Having a debt service level this high would result in only having $700,000 to $900,000 available annually to fund the roadway maintenance plan. This is COMMITTEE -OF- THE -WHOLE Minutes Page 3 of 11 October 25, 2006 3. significantly less than has been spent in the past and less than what the roadway maintenance plan requires in the future. Option 2 -Fund $1 million down payment with cash and finance $4 million due in 2009 In order to use Infrastructure Fund cash for this option, the Village Board would have to first modify its stated goal of extending a six month cash reserve policy to the Infrastructure Fund. For 2007, Motor Fuel Tax funds would be used to fund $600,000 of the 2007 paving program, enabling the Infrastructure Fund to make the $1,000,000 down payment. This would lower the debt service requirement to approximately $370,000 in 2010 and would leave $800,000 to $1,000,000 available annually to fund the roadway maintenance plan; less than the optimum funds needed for the program. Option 3 -Fund $1 million down payment with cash, set aside $1.2 Million by moving the paving program in 2008 and thereafter back one year and finance the remaining $2.8 million. In this scenario, the annual debt service requirement would be reduced to approximately $255,000, which is approximately the same amount generated annually by the Motor Fuel Tax Fund. This revenue source could be dedicated to funding this obligation, and the paving program in 2010 and thereafter would be limited to the amount generated by the non -home rule sales tax after deducting normal operating expenses. Some adjustment to the roadway maintenance plan as currently constructed may be required. Option 4 -Fund $1 million down payment with cash, set aside $2 Million by moving the paving program in 2008 and most of 2009 and thereafter back two years, and finance the remaining $2 million. In this scenario the annual debt service would be lowered to $185,000, but a second year of the roadway maintenance plan would be deferred. Option 5 -Seek referendum approval to raise the non -home rule sales tax an additional 0.25% Since the last budget process, the Village was notified that it will have to fund this $5 million obligation, has approved a beautification plan that projects spending well in excess of $1,000,000, and is in the process of planning for improvements in the 22nd Street corridor that could have significant costs. In addition, staff has tried on several occasions to budget for implementation of a GIS program which involves adding personnel. While in the past the Village has struggled to. balance the budget under existing revenues, adding these significant costs without additional revenue is impossible. Adding this revenue would limit the amount of debt required, would lessen the term and would enable the Village to fund these needed projects. It is possible that this tax could be phased out after these projects are completed. It is expected that this tax would generate an additional $2.8 million annually. These are five scenarios the Board may wish to consider in addition to many others that COMMITTEE -OF- THE -WHOLE Minutes Page 4 of 11 October 25, 2006 could be generated. As part of this process, the Board could elect to add the cost of other projects to any debt issue (beautification or the Commercial Revitalization Project), and there may be potential to restructure the current Village Hall obligation as part of this process that could somewhat lower the debt service requirement (this debt is callable after December 1, 2008 at which time $2,225,000 will remain at 4.7 %). If it is determined to use debt to fund any part of this process, a financial advisor would need to be engaged to consider all alternatives. Finance Director Langlois felt that option of bonding for the whole project would be that the debt service level would be more than the Village could afford unless there was a large increase in sales tax revenue or other revenues that it would have a fairly large impact on operations. Director Langlois recommended option 3, Fund $1 million down payment with cash, set aside $1.2 Million by moving the paving program in 2008 and thereafter back one year, and finance the remaining $2.8 million which would not require new revenues. He requested the Board for their input. Trustee Manofsky indicated that the materials Director Langlois had presented were very clear and informative. She stated that she did not have a problem with full bonding. She felt that there would be very few communities that could fund a $5 million project in cash. She agreed that option three was the best option and suggested that rather than deferring maintenance projects that were needed, to increase the debt service in option three somewhat in order to complete these deferred projects. Trustee Kennedy also agreed that bonding for a project this size is acceptable. He felt that the debt service that the Village has is relatively small and expires in just a few years. He also felt that he would like to move forward with the Beautification Project and improve infrastructure and suggested a scenario to increase the non -home rule sales tax revenue. He added that the majority of this increase would be paid by people from outside Oak Brook, not by residents as compared to other revenue increases. Trustee Sanford also wished to move forward with the Revitalization Project and suggested that the Hotel Motel tax could be increased to be used for the Beautification Project by setting a beautification district which includes the hotels. Trustee Yusuf agreed that option three was a good choice, but preferred option 5, to seek referendum approval to raise the non -home rule sales tax an additional 0.25 %. President Quinlan summarized that the Board was saying that they wished to increase the Hotel Motel Tax to 3% and to use those funds for the Beautification Project and to increase the non -home rule sales tax an additional 0.25% to use for infrastructure projects. Director Langlois also asked to clarify that the Board suggested that the Budget and the Five -Year Plan be compiled based on option three and would prepare for referendum COMMITTEE -OF- THE -WHOLE Minutes Page 5 of 11 October 25, 2006 3. 0 approval of the non -home rule sales tax an additional 0.25% for infrastructure projects. There was consensus. Trustee Manofsky also asked for a consensus of the Board relative to the burying of the HVAC units at the Butler Government Center. There was consensus to work toward 2008 for this project. Trustee Yusuf also indicated that if Oak Brook was a home -rule community the Village would have much more flexibility as to how to use certain types of revenues and would not be as restricted in the use of revenues. He suggested that at a point in the future the Village should consider putting the home -rule issue to referendum. POLICY DISCUSSIONS ON GENERAL FUND, INFRASTRUCTURE FUND AND HOTEL /MOTEL FUND In advance of finalizing the draft 2007 Budget, the Board was asked to discuss priorities for the 2007 budget process for the major operating funds of the Village. GENERAL CORPORATE FUND The draft budget maintains the Village Boar d Within the revenue and expense categories impacted the preparation of the 2007 budget. Revenues policy of a six month cash reserve. there are numerous issues that have Sales tax is the Village's major revenue source. For 2006, sales tax revenue is expected to end the year $50,000 over budget. For 2007, receipts are budgeted to increase 3% from the 2006 estimated amount plus an additional $300,000 expected from the Promenade. Utility tax revenues are budgeted to decline 6.7% due primarily to expected declines in natural gas prices. As previously reported, the Village has continued to see significant erosion in the telecommunications tax base; for 2007 this revenue is expected to decline $348,000 or 14% from the 2006 amount. Most other revenue sources are budgeted to increase by inflationary amounts in addition to assumptions made relative to activity levels in fees generated through the Community Development Department. The decline in telecommunication tax revenue has had a significant impact in putting together the 2007 budget. Weighted down by this decline in telecommunications tax, total base operating revenues are projected to increase only 2.5% from the 2006 budget. Personnel expenses in the current draft budget, which make up 72% of the budget, are budgeted to increase 6.9 %. Thus, due to these factors, staff is recommending to defer most discretionary items and capital projects. In order to restore part of the telecommunications tax base (annual revenues have declined nearly $1 million since COMMITTEE -OF- THE -WHOLE Minutes Page 6 of 11 October 25, 2006 4. 2002), an increase in the rate of I% to 6% (maximum allowed by statutes) is proposed for 2007. The earliest the increase could be imposed is July 1, 2007 with receipts to begin October, 2007. Thus, only $106,000 of revenue is included for 2007. In future years this additional 1% should generate in excess of $400,000 annually. The Board would have until approximately March 15, 2007 to actually enact the ordinance, at which time an assessment of Village finances may enable deferral of the increase. Expenditures For 2007, the budget for the personnel category is expected to increase $943,965 or 6.9% from 2006. Within this category, the amount budgeted for salaries is projected to increase $553,090 or 5.2% from 2006. While most of this increase is due to salary increases, there are some minor changes in full time equivalent staffing. The amount budgeted for pensions is projected to increase $209,705 or 15% and the amount budget for health insurance is budgeted to increase $147,820 or 9 %. For other accounts within this category (such as training, dues and memberships, etc.) the budget is expected to decrease by $3,305 or 1.2 %. Within the material and supply account category, expenditures for 2007 are budgeted to decrease $9,990 or 1.6 %. Within the operation and contractual category, the budget is expected to decrease $277,560 or 6.9 %. Of this decrease, $220,835 is due to limiting the amount budgeted for funding the General Corporate Fund share of the equipment replacement charge to $300,000 whereas under our normal practice $520,835 would be required. This decrease was done in order to maintain the six month operating reserve, and if during the course of 2007 positive budget variances occur, the Board will still have the opportunity to fund 100% of the requirement. Also, as requested by the Village Board last year, staff has attempted to split out the large number items previously budgeted in account 7700 -Other Services and have created many new accounts. For 2007, the budget for capital is expected to decline $269,915 or 28 %. The following summarizes most of the major changes which are included in the draft 2007 budget: • In Program 111 -Board of Trustees, $20,000 is included for planning the Village's 50th Anniversary in 2008. In 2008, the budget for this event is projected to be $75,000. • In Program 112- Village Clerk there is an additional full time employee in order to take over the work currently performed by Linda Gonnella. The total cost of this addition is approximately $60,000, which will be partially offset by a $20,000 budget reduction due to elimination of a part time receptionist position. • In Program 132 -Human Resources, $100,000 is included for outside legal fees due to the start of union negotiations and PSEBA litigation defense. • In Program 151- Information Services, $150,000 of the General Fund share totaling $240,000 for the replacement of the Village's financial and Sports Core computer applications (the remaining amount will be budgeted in 2008). The COMMITTEE -OF- THE -WHOLE Minutes Page 7 of 11 October 25, 2006 4. software currently used is unmodified since it was purchased in 1997, does not have a Windows front -end and support is starting to be an issue due to the age of the applications. This project has been deferred from two previous budgets. • In Program 421- Municipal Building Improvements, $118,000 is included for HVAC screening and refurbishing the wood panels at the Library. $69,500 is included for five different projects at Village Hall. • Between Program 621 Police Field Services and Program 633 - Communications, there is a proposal to shift two full time staff positions to 5 part time staff positions. Although this results in an increase in FTE of 0.5, the actual budget impact is a reduction of approximately $8,000 due to not having to pay health insurance benefits. In addition the number of hours available are expected to increase and could have a positive effect on overtime costs. • In Program 721 -Fire Suppression, $70,000 is included in order to replace turnout gear. 95% of the cost of this project is expected to be grant funded, the Village was recently notified of a FEMA grant for the gear. • In Program 731- Emergency Medical Services, $37,500 is budgeted to replace 21 AED's due to a change in the standard. • In Program 911- Community Development, $123,100 is included for completion of the Commercial Revitalization Project study. • In Program 921 -Code Enforcement, $50,600 is included to upgrade the current part time building inspector position to full time. For 2007, permit fees generated by this department are expected to increase approximately $130,000. Due to revenue limitations and in order to maintain the six month cash reserve, the following items were requested but are excluded in the draft 2007 budget: • There is no Village Board contingency budgeted ($100,000 was included in 2006). • An IS project costing $69,000, which would convert many of our existing PCs to a product called "VMWare" which over time is designed to reduce operating and PC replacement costs. • Implementation of a GIS program which would require adding a staff position ($80,000 to $100,000 annually). • Addition of a second building maintenance position ($85,000 annually). • $75,000 for Independence Day. Outside sponsorship or hotel tax funding (which was done in 2006) will be required. • Funding of the new Village Beautification Project. A budget amount of $399,000 (including the I- 88/22nd Street bridge) was considered but had to be eliminated. Staff has investigated whether hotel tax revenue could be utilized to fund beautification, an increase in the rate would be required to accomplish this. • The following municipal building projects were deferred to 2008 and thereafter: Village Hall HVAC screening ($222,000), Public Works roof ($294,400 deferred for the third time), color aerial photo ($30,000), door security system ($50,000), east side entrance landscaping ($50,000), and reception area COMMITTEE -OF- THE -WHOLE Minutes Page 8 of 11 October 25, 2006 4. remodeling ($25,000). No funds have been budgeted for improvements to Old Butler School, of which $182,000 was requested by the Oak Brook Historical Society for window replacement. • Landscaping enhancements at the Library ($45,000). Outside funding will be sought. • The part time accreditation manager position ($30,500). Although this position was approved on a temporary basis in 2005, the Police Department requested that this position continue. • Residential garbage subsidy ($490,000 annually). • Lowering the interest rate assumption from 7.5% to 7.25% for the Police and Firefighters Pension Fund actuarial studies (would result in a contribution increase of approximately $175,000). • 3 additional police officers in 2008, 3 police officers in 2009, and 2 police officers in 2010 will not be included in the Five -Year Financial Plan. • A part time training coordinator ($10,000), part time salary increases in the Fire Prevention Bureau ($25,000) and station enhancements ($16,000) were eliminated from the Fire Department budget. • Provide funding for matching corporate grants creating a Wi -Fi (mesh network) network in Oak Brook. The 2007 draft budget has eliminated or deferred many important items. Looking forward to 2008, staff hopes to be able to address some of these deferred items as additional funds are expected due to continued occupancy of the Promenade as well as a full year of collections from the 1% increase in telecommunications tax. President Quinlan asked for comments on the General Fund. Trustee Kennedy suggested that the legal budget is too low and does not reflect the true cost of the prosecution particularly since the Village is now picking up DUI prosecutions. He felt that the Village Attorney fees were projected too low. He suggested a meeting with President Quinlan, Attorney Kubiesa, Village Manager Boehm, Finance Director Langlois and himself to determine a more realistic figure and to determine how to be consistent with where the budget money is allocated. He suggested some corrections. He also expressed concern for items that were deleted from the draft budget including Library landscaping and the WI -FI project. Trustee Manofsky commented that personnel costs are very high and expressed concern that the personnel required are based on the commercial residents during the day and felt that the residents should not be bearing the cost. Trustee Kennedy reminded the group that the sales tax revenues will be increased by the revitalization of the community and ultimately help to pay for the services that are provided. Trustee Yusuf also commented that if it were not for the commercial area there would not be sales tax revenues and property taxes would be required to pay for resident services. In addition COMMITTEE -OF- THE -WHOLE Minutes Page 9 of 11 October 25, 2006 4. the school and park district taxes would not be shared thus the residents would bear the whole burden. Manager Boehm asked for further clarification as to direction from the board relative to the telecommunication tax and the decrease in the six month reserve requirement for only the infrastructure reserve. There was consensus for the decrease in the Infrastructure Fund Reserve. The consensus of the Board members was to not increase the telecommunication tax and rework the budget without that tax if possible. Manager Boehm asked the Board if they would consider bonding for maintenance projects that have had to be deferred. Consensus was the Board would consider this and asked staff to put together a list of those projects. HOTEL TAX FUND The Village Manager recommended a I% increase in the tax rate from I% to 2 %, which will generate an additional $350,000 to $375,000 annually. This would enable the Hotel Tax Committee to maintain its marketing budget at $300,000 per year and the additional revenue would be used to fund a portion Village beautification efforts. If the Board is supportive of this idea, the Village would need to establish a "Hotel Beautification District" (22nd Street generally between IL 83 and York Road) in which area monies would be spent. In addition, the Village Board may consider to again using the Hotel Tax Fund to fund the Independence Day celebration ($75,000). Trustee Manofsky recommended increasing the Hotel Tax to 3 %, with the additional revenues to be used for beautification on the streets near the hotels. She pointed out that a 3% rate would still be well below the rates of other communities. There was a Board concensus to support that project. WATER FUND The Water Fund budget is expected to contain a significant amount for capital projects, some of which have been deferred from 2006, some of which were originally planned for 2007, and some new projects related to water mains under the tollway. As provided for in the water rate study completed in October 2005, an increase in the water consumption rate from $3.25 to $3.36 is included in the draft budget. INFRASTRUCTURE FUND Budget issues relative to this fund include funding for the Village's obligation for the I- 88/22" d Street bridge project. COMMITTEE -OF- THE -WHOLE Minutes Page 10 of 11 October 25, 2006 4. SPORTS CORE FUND The only major budget issue is the staff restructuring at the Bath and Tennis Club. On the revenue side, due to the terrible weather this year, golf fees are expected to be under budget. For 2007 it is expected that staff will recommend normal budgetary increases in membership rates as well user fees. Staff expects that the Sports Core Fund has a very reasonable chance to once again break even or turn a profit this year. EQUIPMENT REPLACEMENT FUND It is proposed that the General Corporate Fund will be approximately $220,000 less than what would normally be required in order to address other needs. This will not have a material impact on the funding of equipment replacement this year or in the future. The equipment replacement budget for 2007 will be approximately $820,000 which is somewhat higher than usual due to deferral of over $300,000 of equipment purchases from 2006 to 2007. This has a positive impact due to interest earnings on idle funds. 5. ADJOURNMENT: Motion by Trustee Manofsky, seconded by Trustee Sanford, to adjourn the Committee - of -the -Whole Meeting at 11:35 a.m. VOICE VOTE: Motion carried. ATTEST: s /Linda K. Gonnella Linda K. Gonnella, CMC Village Clerk cow COMMITTEE -OF- THE -WHOLE Minutes Page 11 of 11 October 25, 2006