HomeMy WebLinkAboutRES NO 091-19RESOLUTION NO. 0 9 7- 19
A RESOLUTION APPROVING AND ADOPTING A CASH
RESERVE AND FACILITY REPLACEMENT RESERVE PLAN.
WHEREAS, the City of Bakersfield has traditionally engaged in fiscally
conservative budgeting practices; and
WHEREAS, the City does not currently have a cash reserve or facility
replacement reserve that meet the City's preferred levels or national standards
for government agencies; and
WHEREAS, there is a need for a 60 -day general cash reserve and a
more robust facility replacement reserve to mitigate against future unknown
circumstances; and
WHEREAS, reserve funds help mitigate the effects of unanticipated
situations such as natural disasters and significant unforeseen events, as well
allow the City to temporarily buffer against cuts to staffing levels, programs or
services in response to economic downturns and State revenue takeaways; and
WHEREAS, one of the City Council's adopted goals is fiscal solvency
and providing for the prudent use of fiscal resources; and
WHEREAS, one of the 13 community priorities of the Bakersfield
Public Safety and Vital Services Measure is to ensure the fiscal stability of the
City; and
WHEREAS, the Bakersfield Public Safety and Vital Services Citizens
Oversight Committee has recommended the City Council establish a 60 -day
general cash reserve for the City; and
WHEREAS, the City Council has directed staff to develop a plan to
implement such recommendations to increase the City's general cash reserve;
and
WHEREAS, staff has developed a multi-year plan to increase the
City's general cash reserves to a level equal to 60 -days of general fund
expenditure needs and a facility reserve level to that of adequate need.
NOW, THEREFORE, BE IT RESOLVED by the Council of the City of
Bakersfield as follows:
1. The above recitals are true and correct; and
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2. That the general cash reserve and facility replacement reserve
plan outlined in Exhibit "A" of this resolution is hereby approved
and adopted; and
3. The resolution and exhibit shall provide direction to staff is the
development and implementation of such reserve levels; and
4. That staff shall make every effort, fiscal circumstances allowing,
to meet the target reserve levels within the timelines included in
the Exhibit.
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HEREBY CERTIFY that the foregoing Resolution was passed and adopted
by the Council of the City of Bakersfield at a regular meeting thereof held on
JUN 2 R 2019 by the following vote:
✓ ✓ ✓ ✓ ✓ ✓
AYES COUNCILMEMBER RMEGONZALES, WEIR, SMITH, FREEMAN, SULLIVAN, EARLIER
NOES: COUNOLMEMBNER -
ABSi N: COUNCILMEMBER
loBSE : COUNCILMEMBER V COQ
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JULIE DRIMAKIS
CITY CLERK and EX OFFICIO CLERK of the
Council of the City of Bakersfield
APPROVED JUN 2 8 2019
44Am 4
KAREN K. GOH
MAYOR of the City of Bakersfield
APPROVED as to form:
VIRGINIA GENNARO
City Attorney
Ie
HU� A�SA H. RUDNICK
puty City Attorney
Attachment
Exhibit"A"
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Exhibit''A"
MEMORANDUM
TO: Alan Tandy, City Manager
FROM: Randy McKeegan, Finance Director / RW
DATE: June 19, 2019
RE: City Reserves and Unfunded Liabilities
Members of the City Council requested additional research and the development of a plan on
reserve levels along with funding a new pension related trust fund. That analysis and related
recommendations are spelled out below.
Over the next three fiscal years, increase General Fund Reserves by a total of $5.7 million to reach
the recommended level of two months of General Fund expenditures and increase the Facility
Replacement Reserve by $2 million. The City's rainy day reserves will have a total balance of over
$65.1 million when this plan is fully implemented. In addition, to address the unfunded pension
liability, establish a separate 115 Trust and budget a $5 million annual contribution starting in fiscal
year 2022-23.
RESERVE FUNDS/UNFUNDED LIABILITIES BUDGET PLAN
Fhcd Yem
2019-20' 2020-21 2021-22 2022-23 2023-24 2024-25
C BIFundReserves.(Inc. PSV51 '.: MOW,= 8:900,000 7.000,000 IADD)DW 1:. .1000 T;S000M
Facility Replacement Reserve 2,000,900 200,000 2,000,000
PERS Rote SfabIRWflpn(115 Trust) SAW= 5,00DAW 5,000,000
TOTAL 1 2r000100 81900.000 9,000,000 6,400,000 6,400,000 6,500,000
Note. Cased on ovotobllfy of funs of mltl-year. If insuflrcienI fund, are available the plan will need to be pu,oud back by one Year, ening
Instead on 202526
CUMMULATIVE RESERVE BALANCES
2019-20 2020-21 2021-22 2022-23 2023-24 2024-25
Cpo Bash Reserve (Gen. Fuad) 36;380:000 43,280.00D 50,280,000 51,690.000 53MOO 56580,000
Facility Replacement Reserve 6,590,000 8,590,000 10.590.000 10,590,000 10590.000 10,590,000
PERS Rafe Stabilization (115 Trust) - 5,000,000 10,00D,000 15;000;000
BACKGROUND
Council made a number of inquiries related to both increasing City reserves and addressing
unfunded liabilities for CaIPERS and OPEB at recent meetings in May. It was determined that
looking at the necessity to address these items overall, and prioritizing each, may be beneficial
and the best way to respond.A'S.
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City Reserves
The City currently has a General Fund Cash Basis Reserve of $25.4 million. That amount includes
a Council approved appropriation of $12 million of PSVS revenue in 2018-19 to supplement the
historic General Fund reserve. That additional amount allows the CaIPERS unfunded liability to be
paid at the beginning of each fiscal year as opposed to making payments monthly resulting in
annual interest savings of $1 million to $1.5 million over the next six years. The current plan to
increase General Fund reserves is to allocate these interest savings on the pension liability
payments, which would increase the reserves to $33 million by fiscal year 2024-25.
The City has recently updated revenue estimates both for the current fiscal year and for 2019-20
that increases Sales Tax Revenue. This change allows increases in the budgeted allocation to the
General Fund Cash Basis Reserve for both years ($1 million in 2018-19 & $3.3 million in 2019-20.)
The Government Finance Officers Association (GFOA( recommends General Fund reserve levels
equal to two months of expenditures and this plan puts the City near that recommendation
based on the 2018-19 budget. The proper level of General Fund reserves is a moving target
though. The estimated General Fund budget in two years, when the bulk of PSVS hiring is
completed, would be approximately $327 million, which increases the minimum target reserve
in the General Fund to $54.5 million.
A study by the San Francisco Office of Controller found that the largest cities in California had all
established goals or policies of maintaining a General Fund reserve of 10°%or less of General Fund
revenues or expenditures (depending on the organization). See Attachment A. The current goal
of two months of expenditures (or 16.7%) exceeds the reserve levels sought by those comparable
cities. The department is currently researching to find the most recent reserve levels for those
identified in the study.
The City also has a reserve fund that is held for emergency repairs and maintenance to City
facilities. The balance of that facility reserve is at its lowest point since it was established in 2005,
currently $2.6 million. With the improved Sales Tax Revenue outlook mentioned previously, the
City was able to set aside an additional $1 million for this fund in the current year. The 2019-20
budget also proposes an increase of $1 million to this fund but additional reserves are needed.
When it was established over a decade ago, the goal was a reserve level of $5 million. The value
of City building and improvements has increased significantly since 2005, both due to inflation
and additional assets, so it has been proposed that the facility reserve level should be at a level
closer to $10 million.
PERS and OPEB Liabilities
CalPERS and OPEB liabilities continue to be a concern with unfunded liabilities sitting at $415
million and $78 million respectively based on the most recent actuarial reports. Required
contributions to CalPERS for 2019-20 will be over $53 million and are expected to increase over
30% to $69 million by 2024-25.
The City has established what is called a Section 115 Trust to fund the OPEB liability and has
eliminated the benefit for employees hired after 2006. The OPER program is therefore a "closed"
system and the number of participants will only shrink over time. Analysis of the liability and
investment performance has shown that, with the City continuing to make the required
contributions, by 2036 the earnings on the trust should cover the anticipated cost of the plan
going forward. Contributions in excess of the required amount do not shorten the estimated time
the trust will become "self -funding" in a meaningful way. Actuarial analysis shows that an
additional contribution of $5 million only reduces that timeframe by 1 year so excess funds are
considered better -served addressing ColPERS liabilities.
There are fewer options available to reduce the CalPERS liability. Steps have been taken locally
with the voter approved Measure D in 2010 and at the State level with the passage of PEPRAin
2013. Additional contributions could be made to PERS, but there has been reluctance to consider
that option due to past investment performance at CalPERS. A separate Section 115 trust could
be established in what is called a Pension Rate Stabilization fund. Those funds would remain within
the City's control and be managed by the City's own investment consultant. The deposits could
then be held in the trust to either offset the pension liability or cover significant spikes in required
contributions should the need arise. Reductions to the City's total pension expenses have also
occurred with smaller shifts of the Employer Paid Member Contributions (EPMC) back to
employees connected with past COLA increases.
These varying and competing needs will require prioritization on the use of available funds
moving forward.
Increasing General Fund and Facility Reserves
With the target reserve levels of $54.5 million, over the next three years the City will need to
supplement the initial reserve plan by approximately $23 million ($17 million for General Fund
reserves and $6 million for Facility reserves.). That amount would be in addition to the savings on
interest that will be realized by funding the PERS liability payments at the beginning of each year.
As noted previously, the target reserve level of $54.5 million (or 16.7% of budgeted General
expenditures) is the level recommended by GFOA and exceeds the average reserves
percentage held by comparable Cities in research by the San Francisco Office of Controller.
Establish Pension Section 115 Trust
As discussed, addressing reserve levels will the first priority but after fiscal year 2022-23, a Section
115 trust could be established to deal with the City's pension liabilities. Reducing unfunded
liabilities requires establishing some goal or benchmark the City would like to achieve. There is an
unfunded liability balance nearing $500 million dollars with an overall funded ratio of 66%. As an
example, if the City would like to get to a ratio of 70% for the CaIPERS liability, that would require
a contribution to the trust starting in 2022-23 of $5 million a year through 2027-28 based on the
most recent actuarial reports. It should be noted that each year the liability reported by ColPERS
changes based on new actuarial studies and these unfunded amounts are very fluid based on
investment performance and plan population.
Please contact me if you need any more information or have questions.
Attachment
Cc: Chris Huot, Assistant City Manager
Nelson Smith, Finance Director
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ATTACHMENT A
Table S. Reserve Policies of Peer Jurisdictions
City Reserve Name Purpose size
FY 2009-10 Reserve Balance
Withdrawal Deposits $millions %oftarget
Francisco
None specified
None specified
million historically)
Supervisors
550.0 17.3% of total
long-term reserve
General Fund
current
Rainy Day Reserve
Significant
Maximum of 10% of
Projected revenues for
50% of excess
24.6
revenues
0.9% of regular
Poll
revenues
economic
regular General
upcoming year must be
revenuesif
None specified
General Fund
and long-term
dowmums
Fund revenues
less than current year or
projected revenues
reserve
revenues
revenues
the highest of any other
exceed current year
None specified
None specified
None specified
- -
Fund
fiscal year's revenues
revenues by 5% or
Fresno General Fund
Natural disasters,
5% of General Fund Declaration of fiscal
Add funds as
plus 2% for each
more
significant declines
appropriations
emergency by Mayor,
necessary to reach
General Fund
" t enim Year
ratified by Cfiy Council
or exceed 5% target
Anaheim
General Fund
None speed
7-10% of General
None specified
WA
28.2
11%of General
Unrashicted Fund
Fund expenditures
Fund
Balance
expenditures
Boston
General Fund
Extraordinary&
2.5% of preceding
Written dooumentafion
None specified
27.5
2.8% of prior
Reserve
Unforeseen
yeafs
explaining why transfer
year City
Circumstances
appropriations for all
is necessary, approval
Department
City departments
from Mayor & City
appropriations
(excluding schools)
Council.
Undesgnated
Fired costs (e.g.
10% .1 General
Actual revenues exceed
WA
550.3
24.5% of
General Fund
pension
Fund operating
budgeted amounts &
(FY2008-09)
General Fund
Balance
contributions) or
expenditures
encumbrances are less
operating
extraordinary,
than appropriations
expenditures
nonrecurring events
Chicago Skyway mid -and
None specified
None specified
None speed
None specified
550.0 17.3% of total
long-term reserve
General Fund
revenues
Parlang meter mid-
None specked
None speed
None specified
None specified
180.0 5.7% of total
and long-term
General Fund
reserve
revenues
Budget Stabilization
None specified
None specified
None specified
None specified
- -
Fund
Fresno General Fund
Natural disasters,
5% of General Fund Declaration of fiscal
Add funds as
17.0 7.5% of
Emergency Reserve
significant declines
appropriations
emergency by Mayor,
necessary to reach
General Fund
in GF revenues
ratified by Cfiy Council
or exceed 5% target
appropriations
Countemyclical Sbw arenue gmwtM1 Minimum of 5% of Rearmue growth,
Rexene Fund during recession General Fund unemployment are,
coasting re,enues property tax delinquency
rale, & business license
reasnue growth rggea
FY 2009.10 Reserve Balance
city Reserve Name
Purpose
Size
yKthdrawal
Deposits
$ trillions % of target
RaquI merits
Honolulu Fiscal Stability Fund
Economic & revenue
None specified
A trigger relating to
Deposits subject to
26.8 1.9%of total
dosamums;
unemployment,
Council appoo al;
General Fund
ememeacy
revenues, property `value,
possible sources are
revamres
slumb.ma
experaftures, unNnded
unbudgeted
mandates, or mituml
unreserved fund
disaster ..at be and
balance & property,
sales
Los Angeles Contingency
W Hhin fiscal year
2.25% of total
Majority sate, by an,
If funds remoced
1225 2.5% of trial
Russ. Fund
unanticipated
General Fund
C ncll
total less than 1% M
General Fund
expenses or revenue
avenues
GF revenues,
asarme^
shortfalls
resume must he fully
restored in following
FY; tfunds removed
total more than 1%.
funds shall W
Emergency Reserve
Significant economic
Minimum of 2.75%
Mayor must determine
replenished l% per
121.0 2.99%of total
FUM
downtum; natural
of total General
that ne other Viable
FY until replenished
General Fund
disaster
Fund resenues
sources of fulls era
relemres
mailable
Oakland Genemf Purpose
Unusual,
7.5% of General
A declaration ofa fiscal
(Sly Administrator
9.82.3%of General
Fund Reserve
unanticipated and
Purpose Fund
emert3ency must be
shall present
Fund
seamingy
expenditures
approved by a m ijoity of sbalegy to restore
expenditures
Quotable
City Council
reserve balance
events of lordship
Philadelphia Genual Fund
NonespedilM
None specified
None specified!
None specified
55.3 2.25/6of total
Balance
General Fund
.U.
Portland Emergency Reserve
Within fiscal year
Minimum of 5% of
Unanticipated stent
Must begin to
64.9 15.5%of
Fund
unanticipated
Gerimal Fund
would result in negative
restore funds wthin
General Fred
expendtures or
oparatirg revenues
ending GF balance;
24 months of
operating
revenue fluctuations
Declaration
witldrawal
revenues
emergency by Council
dolmans.
Countemyclical Sbw arenue gmwtM1 Minimum of 5% of Rearmue growth,
Rexene Fund during recession General Fund unemployment are,
coasting re,enues property tax delinquency
rale, & business license
reasnue growth rggea
FY 2009-10 Reserve Balance
city
Reserve Name
Purpose
Size
Withdrawal
Deposits
$ millions
% of target
Requirements
Sacramento Economic
Nona specified
No formal policy, in
None specified
None specified
10.5
2.8% of
Uncertainty Reserve
practice, maintain
General Fund
reserve equal to
revenues
10%af GF
revenues
San Diego
Emergency Reserve
Qualifying
Target: Emergency Declaration of
None specified
75.4
6.7% of
emergencies
Reserve must equal
emergency approved by
General Fund
8% of GF Revenues
two-thirds of City
revenues
Council
Phasean:
Appropriated
Within fiscal year
combined value
Approval by majonty of
Reserve
unexpected
must equal 8% of
City Council
operational needs
GF Revenues by
Unappropriated
the and of FY2011-
Reserve
12.
San Jose
General Fund
Unexpected
3% of operating
Approval by hvo-thirds
None specified
30.7
3.1%of
Contingency
circumstances
budget
of City Council
General Fund
Reserve
Including GF
expenditures
shortfall
Emergency Reserve
Known but
None specified
Not specified
None specified
3.4
0.5% of
Fund
unspecified
General Fund
expenses
expenditures
Economic
Public emergency
None specified
Not specified
Financed through
4.5
0.3% of
Uncertainty Reserve
that threatens Ives,
sale of surplus city
General Fund
Fund
property or welfare
properties
expenditures
of residents