An Analysis of the County Budget Proposal – I
TAB has a goal for this budget year to see the millage unchanged at 4.344. Since the staff proposals (green/blue pages) have been “vetted” and impact analysis performed, we have analysed those line items with an eye towards what would be reasonable and acceptable. As the green page reductions are achieved mostly through elimination of unfilled positions, they would seem to be a clear target. The blue pages (after some line items that would have strong public support are restored) are also acceptable and we believe would have little observable effect by MOST of the public. Therefore, TAB recommends the adoption of spending cuts totalling $56M as defined below, and the related elimination of 268 positions (2% of the county workforce) that could be accomplished through attrition. This does not quite achieve the flat millage, but we are continuing to seek the remaining $5M.
Introduction
The county budget is often analysed from the perspective of the “rollback rate”. This is the millage that would generate the same ad-valorem revenue as the previous budget year, given the current year’s estimate of property valuations. It is useful only in that whatever becomes the actual millage for that year can be compared to the “rollback rate” to see at a glance if the tax burden is growing or shrinking. It says nothing about the spending levels at all though, as other sources of revenue (eg. fees) offset spending across departments, and the budget can be actually growing while the tax burden (ad valorem) is shrinking. By the way – that is actually what is occuring this year – the budget appears to be growing.
It is difficult to see this clearly, because much of the budget documents focus on the ad-valorem numbers, and department level rollups in the documents don’t always match the top line figures because of the real-time nature of the process. That said, the July 6, 2010 workshop document shows the following county rollup on page A-17: (Click HERE to view the document.)
Grand Total BCC Departments/Agencies, Judicial and Constitutional Officers | ||||
---|---|---|---|---|
2010 | 2011 | Change | % | |
Revenues | 1,061,922,162 | 1,170,404,859 | 108,482,697 | 10.2% |
Appropriations | 1,981,557,651 | 2,037,313,337 | 55,755,686 | 2.8% |
Net Ad Valorem Requirement | 919,635,489 | 866,908,478 | (52,727,011) | (5.7%) |
Positions | 11,389 | 11,284 | (105) | (0.9%) |
TAB will attempt to look at spending in real terms, including such things as grants and particularly this year – the ARRA stimulus funds that the county received. (ARRA = American Recovery and Reinvestment Act). Our share of ARRA funds is in the vicinity of $110M and it has quite an effect on the budget (as you may expect). For this article though, we will analyse the budget using the information provided in the workshop documents and stick to the Ad Valorem measurements.
The Budget Proposal
As of the last budget meeting, at which time the maximum millage was set at 4.75 for county-wide taxes, the rollback rate was 4.8223, producing county-wide taxes of $612,486,522. Simple arithmetic tells us that this assumes a property valuation of about $127B. Therefore, a millage of 4.75 implies a reduction in ad-valorem equivalent from last year of $9.2M. To achieve the TAB goal of keeping the millage unchanged (4.334) would require a reduction of
$60.7M (coincidently – that is only $5M more than the budget was expected to GROW this year). So how would we get there?
County staff prepared a series of proposals for budget cuts, known by their colors – the “green” and “blue” pages. The green pages are relatively easy to apply – most savings can be had without cutting occupied positions or adversely affecting services delivery. They account for $22.5M in cuts.
The “blue” pages are harder, and are split into “level 1” ($10.4M and the elimination of 91 occupied positions), and “level 2” ($25.7M and 241 positions). Blue page cuts will result in some reduction of county services, some visible and needed.
Again, if we take up our calculator, we see that the sum of all these cuts is $58.6M – pretty close to what we need to keep the millage flat. Since the Sheriff has already been asked for another $3M, just to achieve the 4.75 millage – if that were to happen we would be over the top and have reached our goal. All without needing to look at capital projects or the details of the PBSO internals, or by trading up into the aggregate millage by seeking reductions in Fire / Rescue. Wow – how about that?
So what’s wrong with this picture?
The sticking point is that the “blue” pages require an actual reduction in staff – not just the cutting of “unfilled positions”. Real people will lose their jobs and have to enter the job market at a bad time for the economy. Of course that challenge is faced every day by businesses who can’t just maintain their staffing by raising taxes. Also, cutting staff means delivering fewer services. Some would say that the $400M that was trimmed from the budget over the last few years was not really noticed by anyone. Would this be noticed? Let’s analyse the green and blue pages by line item and see what is being proposed, and judge for ourselves if these are indeed “critical functions” that are part of the core mission of county government, or just some things that are not essential.
So let’s go through the staff proposals by area, and consider the effect of the cuts.
The Green Pages
The $22.5M spending reductions listed in the “Green Pages” are almost completely achieved by eliminating unfilled positions. Where an impact is noted, it would be because some growth in service level was anticipated in the area, or an attempt was being made to reduce workload on current staff. By definition, if the the positions are unfilled, then it is not likely that a service impact will be felt at current service levels. TAB recommends adoption of ALL Green Page proposals.
Department/Program | Description | Savings | Positions | TAB Analysis |
---|---|---|---|---|
Financially Assisted Agencies | Reduce 5%, Eliminate funding for Culture Council | $1.6M | 0 | Not essential services. |
Office of Community Revitalization | Reduce street light maintenance | $131,232 | 0 | No impact |
Community Services | Adjustments with grant funded projects | $1,231,950 | 4 | Not essential or absorbed. |
Cooperative Extension Service | Eliminate unfilled positions | $207,432 | 0 | No impact – positions were unfilled |
Criminal Justice Commission | Reduce ad-valorem portion of staffing | $514,261 | 4 | Redundant or not essential services. |
Economic Development | Reduce scale of programs | $309,105 | 0 | Questionable value – what are the metrics? |
Engineering | Eliminate unfilled positions | $2,853,280 | 0 | No impact – positions were unfilled. |
Environmental Resources Management | Reduce program scale | $1,692,707 | 0 | Work slowdown – positions were unfilled |
Facilities Development and Ops | Eliminate unfilled positions, some procedure changes | $1,073,778 | 2 | Minor or no service level impact. |
Financial Management and Budget | Eliminate unfilled positions | $99,936 | 0 | No impact – positions were unfilled. |
Human Resources | Eliminate unfilled positions | $166,548 | 0 | No impact – positions were unfilled. |
Information Systems | Eliminate unfilled positions | $2,772,681 | 0 | No impact – positions were unfilled. |
Judicial | Various efficiencies | $1,446,985 | 0 | Little or no impact |
Legislative Affairs | Eliminate unfilled position | $58,961 | 0 | No impact – position was unfilled. |
Palm Tran | Change in fees and eligibility | $3,075,000 | 0 | Not essential service. |
Parks and Recreation | Eliminate unfilled positions | $2,688,895 | 0 | None – postitions were unfilled. |
Planning, Zoning, Building | Eliminate unfilled positions | $907,472 | 0 | No impact – positions were unfilled. |
Public Affairs | Eliminate unfilled positions | $387,068 | 1 | No impact – positions were unfilled or moved. |
Public Safety | Eliminate unfilled positions and juggle workload | $1,174,404 | 2 | Little impact – positions were unfilled or can be handled elsewhere. |
Risk Management | Eliminate unfilled positions | $121,824 | 0 | None – duties absorbed. |
Small Business Assistance | Reduce mission. | $21,533 | 0 | Not essential service. |
GRAND TOTAL – GREEN PAGES | $22,531,056 | 13 |
The Blue Pages – Level 1
The level 1 blue pages contain $10M in spending reductions that require staff reduction of filled positions.
With the exception of the Parks & Recreation line item that would result in the closing of pools, parks and nature centers, most of the effect would be to spread work around or ask remaining staff to pick up the load – perhaps with longer delays for service, but in no way is public safety, gross customer satisfaction, or critical mission requirements compromised. In most cases, the reductions are not in what TAB would consider core county missions. TAB recommends adoption of all blue level 1 cuts (except those noted) for a reduction of $8M and 53 positions.
Department/Program | Description | Savings | Positions | TAB Analysis |
---|---|---|---|---|
Financially Assisted Agencies | Reduce 5%, Eliminate funding for Culture Council | $1.6M | 0 | Not essential servcies |
Financially Assisted Agencies | Reduce additional 5% over green pages | $569,000 | 0 | Not essential services |
Community Services | Reduce veteran’s service 25% | $48,204 | 1 | Redundant or not essential services |
Facilities Development and Ops | Eliminate 1 auto tech and reduce window washing | $101,000 | 1 | Slight increase in time to repair – ACCEPTABLE |
Information Systems | Reduce staff by 5 positions (<3% of department) | $526,000 | 5 | Spread workload – ACCEPTABLE |
Office of Community Revitalization | Sweep funds | $1,150,551 | 2 | No current impact – ACCEPTABLE |
Office of Equal Opportunity | 25% cut without violating mandates | $60,000 | 1 | Reduces scope – ACCEPTABLE |
Palm Tran | Raise Fees | $2,650,000 | 0 | Higher fees and lower subsidy – ACCEPTABLE |
Parks and Recreation | Reduce staff and close facilities, defer maintenance, reduce public relations | $3,937,581 | 53 | TAB believes the beachs, pools, and nature centers are widely utilized by the public and should be kept open. Some ancillary and seasonal cuts are acceptable. TAB recommends restoring $2,426,000 and 38 positions from this line item. |
Planning, Zoning, Building | Reduce planning functions to mandated levels | $218,560 | 3 | Planning function only – ACCEPTABLE |
Public Affairs | Consolidate office services, reduce coverage of channel 20. | $400,000 | 13 | With major meetings still on channel 20, other cuts are ACCEPTABLE |
Public Safety | Reduce hours in animal control, reassign work, reduce staff | $605,819 | 11 | Reduction is 3% of Public safety area – ACCEPTABLE |
Small Business Assistance | Eliminate 1 specialist | $155,625 | 1 | 14% staff cut to non-essential service – ACCEPTABLE |
GRAND TOTAL – BLUE PAGES LEVEL 1 | $10,422,340 | 91 | With TAB Restores: $7,996,340 and 53 positions. |
The Blue Pages – Level 2
The level 2 blue pages contain cuts that are more visible and significant than the level 1 cuts. That said, most of them are in areas that we do not consider “core county mission” and are acceptable spending reductions, except as noted. Cutting maintenance for traffic signal loops or curtailing mosquito control would seem to be silly, and closing the parks and pools is not acceptable to most residents. Therefore, TAB recommends adopting these cuts except where noted, for a total of $23M and 215 positions.
Department/Program | Description | Savings | Positions | TAB Analysis |
---|---|---|---|---|
Financially Assisted Agencies | Reduce another 5% | $540,000 | 0 | Not essential services – agencies that receive FAA funds have other sources and can adjust their service delivery appropriately. | Community Services | Reduction of county overmatch on grant programs | $4,398,000 | 14 | These programs appear to get funding from grants and county contribution is not essential – ACCEPTABLE |
County Commission | Decrease Commission Support Staff | 0 | 0 | A 33% cut in commissioner staff with no claimed savings would seem to be not helpful. |
Engineering | Eliminate funding for signal loop maintenance | $285,000 | 0 | Would seem to be unwise. KEEP |
Environmental Resources Management | Cutbacks in Mosquito Control | $200,000 | 2 | Would seem to be unwise. KEEP |
Facilities Development and Ops | Eliminate various postions (3%) and outsource Electronic Security Services | $1,018,648 | 35 | Phase in outsourcing (50%) and keep receptionist. Restore $377990 and 16 positions. |
Information Systems | Eliminate 9 positions (~5% of IT) | $1,192,000 | 9 | 5% can be absorbed in any IT organization by increasing exempt overtime. |
Palm Tran | Eliminate unfilled positions, change fees | $2,863,225 | 2 | Fixed route Sunday service positions were unfilled. Other service cuts would need to be evaluated in larger context but they seem ACCEPTABLE. |
Parks and Recreation | Further cuts that would result in closing of many visible facilities and programs and deferring maintenance. | $11,572,331 | 126 | As with the Parks and recreation cuts in level 1, TAB supports restoring the visible facilities that are open to all county residents. Of the 15 line items in this section, we would maintain funding for items 1 (rangers), 2 (nature centers), and 5 (pools), for a total of $2,217,073 and 24 positions. |
Planning, Zoning, Building | Reduce code enforcement budget by 25% | $795,072 | 11 | Staff cuts will result in delays but not ommission of enforcement functions – ACCEPTABLE |
Public Safety | Elimination of some ancillary services (youth affairs, victim services) and reduction in hours of animal control | $2,522,400 | 40 | Core functions remain operational and programs that are not “essential services” are curtailed – ACCEPTABLE |
Small Business Assistance | Further staff cuts to SBA resulting in about half current level. | $275,000 | 2 | Providing assistance to small business, while helpful to those using it, is not a essential to county government – ACCEPTABLE |
GRAND TOTAL – BLUE PAGES LEVEL 2 | $25,659,882 | 241 | With TAB restores, $22,579,819 and 215 positions. |
Summary
So, based on an analysis of the county staff proposed cuts, we believe that a serious reduction in county spending is possible, without drastically curtailing county services that the majority of the public has come to expect. Taking into account the cuts we would restore, TAB sees one possible scenario as follows:
Rollback tax revenue | $612,486,522 |
Green cuts | ($22,531,056) |
Blue-1 (TAB version) | ($7,996,340) |
Blue-2 (TAB version) | ($22,579,819) |
Sheriff’s Challenge | ($3,000,000) |
Resulting Revenue | $556,379,307 |
Equivalent Millage | 4.381 |
So, we are close but not quite at flat millage. In part 2, we will examine where else we can find cuts.
Where does the $56M Budget Increase Go?
Did you know that the County budget is growing by $56M this year? Most of the attention has been on the ad-valorem amount (property taxes) decreasing, but the $107M in federal stimulus money is flooding the system (in the first quarter alone: CLICK HERE), causing the county to hire new staff and grow the overall appropriations by $56M. What happens to our budget when the stimulus ends??
First, here’s the budget at a glance:
Grand Total BCC Departments/Agencies, Judicial and Constitutional Officers | ||||
---|---|---|---|---|
2010 | 2011 | Change | % | |
Revenues | 1,061,922,162 | 1,170,404,859 | 108,482,697 | 10.2% |
Appropriations | 1,981,557,651 | 2,037,313,337 | 55,755,686 | 2.8% |
Net Ad Valorem Requirement | 919,635,489 | 866,908,478 | (52,727,011) | (5.7%) |
Positions | 11,389 | 11,284 | (105) | (0.9%) |
Now look at where much of the growth is occurring: (source is 7/6/2010 workshop package)
2011 Increase | % | Explanation | |
---|---|---|---|
Community Services | +$2M | +2.4% | Head Start ARRA Expansion grant – Net +11 positions |
Environmental Resource Mgt | +$8M | +16% | ?? |
Housing and Comm. Development | +$48M | +61% | $58M “Neighborhood stabilization grant” – net +8 positions |
Palm Tran | +$10M | +8.5% | increase in federal grants |
Econonmic Development | +$9M | +42.8% | Block grants |
Fire Rescue | +$14M | +4% | increase in compensation – salary and pension from union contract |
Tourist Development | +$3M | +7.5% | how spent? |
Water Utilities | +$7M | +6.3% | “uncontrollable operating costs” and new services |
+$101M |
It should be noted that some consider the federal stimulus funds as “free money” – that is, if we didn’t get it someone else would. There is truth to that given the current management of the federal government. On a local level, a prudent use of these dollars would be to smooth over the budget shortfall until economic conditions improve. Instead, (possibly because of the rules surrounding the grants), the funds are being used to grow the county budget, even adding staff in some areas that will have to be paid out of local dollars when the stimulus ends. Is that the right thing to do?
Notice of Public Meeting
County Commission Should Follow Delray’s Lead (NOT)
NOTE: This post was based on projections as reported by the Sun Sentinel on 7/31. On 8/3, Delray Beach decided to (probably) raise taxes after all and set the millage rate to 7.41 – a 3% increase. TAB formally withdraws its kudos from Delray Beach and will look elsewhere for examples of responsible government. CLICK HERE for the story.
Our Board of County Commissioners and Administrator Weisman, with their sliver of a 1.5% budget cut should look to the South for an example of how responsible stewards of the public trust behave.
The Delray Beach City Commission, facing a $7M budget shortfall, has decided to cut spending rather than raising the millage rate. Now granted, their $98M budget is pocket change to the BCC, but the size of their revenue shortfall is similar on a percentage basis.
“It’s going to be a tough process,” Commissioner Fetzer said. “The simplest thing for the commission is to increase the tax rate, but I just don’t think that’s going to work anymore.”
Seeking out ideas from employees and the financial review board, City Manager David Harden is being creative in seeking cuts. Here are some of the things they are pursuing:
- Furloughs equivalent to a 4.6% salary reduction with no layoffs.
- Cutting staff at fire stations
- Eliminating the city’s contribution to the retirement trust.
- using interest earned from construction bonds to pay the city’s debt service
- Charging employees a $65 fee to participate in the take-home car program.
Where is the creativity at the county level???
For full details, see the story in the Sun Sentinel HERE
TAB Plan, Projects, and Timeline
TAB was formed to find ways to reduce county spending. Notice that we are not trying to “reduce the millage rate”, or even “reduce taxes”. The complexity of county revenue sources and the various adjustments to property tax bills such as the homestead exemption and appraisal caps make tax comparison a game of “who wins, who loses”. Millage, likewise, is more a game of trends and estimates in property appraisal. To really get a handle on the affordability of the county spending it must be compared to an objective measure of economic activity, population, inflation, or some other external yardstick. That sort of measure could then be used to see how we stack up against other Florida counties, or government entities around the country.
Palm Beach is a “rich” county. Our per capita income is high for the state and for the country. This should imply that we could spend more per capita, and have a richer infrastructure and nicer amenities, parks, and facilities than the average, but it does not mean that county spending per capita can continue to increase without negative economic consequences to both consumers and businesses.
From a high level, the county budget has parts that are contracting in line with revenue and others that appear have grown without restraint – PBSO and Fire/Rescue for example. Both are complicated by absorption of municipal areas over the survey period, and capital projects for needed service enablement. Most of the growth though, appears to be in the area of employee compensation, driven by union contracts. This is a problem shared by governments at all levels and in all parts of the country. At its core, it is a failure of leadership by elected officials and it is not fair to blame the unions or the employees for requesting and winning a compensation package that is ultimately unaffordable. Just as failures of leadership from the executives of the Detroit auto companies led to federal bailouts, bad negotiating by county (and state and local) officials are leading us towards unpleasant consequences. Public employees deserve good pay and benefits, but it must be in line with the private sector where the wealth is created and which ultimately pays the bills. This is an area for long term focus by TAB.
A look at the chart prepared by Property Appraiser Gary Nikolits indicates that PBSO is the largest component of the county budget and has been growing much faster than the parts controlled by Administrator Weisman (which is shrinking, although modestly so). About $15M in cuts have been proposed by the Sheriff, mainly by cutting 3 entire programs. These are the Eagle Academy, the Drug Farm, and the Parks Police. We will look at these in another article and consider how they fit in the scheme of things. Beyond that it is difficult to analyse the PBSO budget as it is not published with the rest of the county. TAB has submitted a records request with PBSO for the “budget package” and have been assigned a tracking number, but as of yesterday, the Records Division could not say when it would be available.
Short term, TAB wants to see the millage unchanged at 4.344 versus the proposed 4.75 maximum. This would require another $52M in cuts (which is about 8.4% of ad valorem revenue, or about 1.3% of the overall county budget of $4B). Fire/Rescue, which has its own millage rate, is proposing no change for 2011, but it does plan to spend down reserves, so we will be looking at their spending as well.
TAB Timeline
With the next County Commission meeting on the budget set for September 14, we have established a schedule that will produce some solid proposals against our short term goals by that time. The timeline includes a September 2 public meeting, tentatively to be held in the Lantana branch of the County Library system when we will roll out the proposal. Commissioners, staff, and Constitutional Officers will be invited to this meeting. To meet this objective we have divided the TAB team up into work groups to delve into the following areas:
- Core County Mission (ie. “What business are we in?”)
- Capital Projects and the Debt Process
- PBSO Budget
- Fire / Rescue
- Government Structure
In the coming days, we will be organizing this website to display interim findings in these areas. We welcome comments and assistance. If you would like to work with us on these projects, or would like to propose additional areas of focus, please contact us at info@pbctab.org
Issues in the Orange County Mayor Race
Editor’s Note: Matthew Falconer is the author of the book: “Building A Better Local Government, How To Lower Taxes and Improve services At The Same Time“.
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BCC 7/20 – Hal Valeche
Hal Valeche from the Taxpayer Action Network. I’m very happy to say that we will be working closely with TAB and I believe we really are achieving critical mass.
I am disappointed that the Board seems likely to recommend collecting approximately the same amount of ad valorem revenue this year as last year, requiring a substantial rate increase once again.
Given that property values are likely to continue to decline over the short term, your action sends a signal to homesteaded taxpayers that they can expect to continue paying more every year. In addition to all the other local taxing authorities who are planning an increase this year, a massive increase in federal taxes will happen on January 1st.
A real recovery has yet to take hold here in South Florida, and we’re certainly not going to speed up its arrival by increasing the burden on our most productive citizens.
I think it’s clear that we’ve gotten to the point where the taxpayers just cannot afford the level of government we’ve been given. I think it’s become mandatory for us to step back from this current cycle of ever-increasing tax rates and seriously re-evaluate everything we do as a government, and by that I mean every program, every department – everything we do. We can’t afford the government we had five years ago, and asking taxpayers to continue to dig deeper to support it is economically self-defeating.
County Adminstrator Cancels Budget Workshop
July 22, 2010
During the BCC meeting on 7/20, Commissioners Vana and Aaronson requested a budget workshop to be held on 8/31, to include the constitutional officers (such as the Sheriff) in a discussion of cross-organization efficiency. The public was to be invited, specifically TAB.
Today, after a good-faith effort on the part of Administrator Wiseman to set up the meeting, it was announced that the workshop has been canceled. For various reasons, the constitutionals could not (or declined to) participate. Each had a different reason and/or comment:
- Sheriff Bradshaw “.. cannot attend and he indicated that he did not think it was appropriate to send a substitute“.
- Supervisor of Elections Bucher was willing to attend but because of the proximity to the primary election, may be busy if there are recounts.
- Tax Collector Gannon, while willing to participate, suggested that the Commissioners visit her facility first and discuss if she could not assume some of the county’s programs and do them more efficiently. She also noted: “I do not want to meet in the Chambers. If we are to look at this from a team or partnership approach frankly I don’t think the Chambers is conducive to creating that atmosphere“.
- Clerk and Comptroller Bock said that her office is already very efficient and thought the Commissioners should visit her facility before “before setting a date to discuss “potential organizational efficiencies”“.
- Property Appraiser Nikolits, whose budget is less than 5% of PBSO, thought there was no point to the meeting unless the Sheriff agreed to participate. He went on to say: “Aside from the Sheriff, I have not heard any complaints about the budgets of the Constitutional Offices. If his budget is the issue, perhaps the BCC should deal with the problem.“
We at TAB see this reluctance to cooperate as a drawback to the current structure of county government. Regardless of whether this meeting is rescheduled, TAB is considering plans to hold its own workshop with members of the public and any county officers or staff that would like to participate in a citizen’s forum.
The text of the Administrators memo is below:
Administrator Wiseman
From: Robert Weisman
Sent: Thursday, July 22, 2010 8:55 AM
To:
Cc:
Subject: Proposed Workshop with Constitutional Officers
We have now received responses from all of the Constitutional Officers that we invited to the proposed workshop on August 31. The responses ranged from timing conflicts that would prevent attendance to suggestions that the format/location be changed to requests that the Commissioners visit offices to view operations, etc.
In light of the preceding, and after discussion with Chairman Aaronson, I am canceling the workshop. We will re-consider timing and format for a future date. Commissioners may wish to individually take up the offers that have been made for visits.
BCC 7/20 – Mike Jones
I am Mike Jones, President and CEO of the Economic Council.
Our organization has consistently advocated trimming government expenses in response to declining tax revenues. We have also engaged independent consultants that have confirmed that our County’s competitiveness could be enhanced by more genuine public-private partnerships and collaboration to share scarce resources. During these difficult economic conditions, the public and private sectors are all doing more with less and taking extraordinary steps to maximize efficiencies. It is important to avoid the temptation of looking back to place fault and blame for our current dire circumstances. Instead, we encourage the public and private sectors work collaboratively and proactively to ensure our community and all its citizens equitably share in the sacrifices as we strive for smart solutions. We discourage increasing the millage rate, fees or assessments unless and until all other options have first been thoroughly explored.
We encourage you to consider all tools at your disposal to make local government more efficient and productive. We are prepared to work with your staff, the constitutional officers, the Taxpayer Action Board and any other interested citizens to realize meaningful savings without sacrificing essential services.