Budget Message

For Fiscal Year 2008

 

 

Mayor McAlister and Members of Council:

 

Submitted herein, in accordance with the Local Government Budget and Fiscal Control Act, is the proposed annual budget for fiscal year 2008 for the Town of Cary. The budget is balanced and identifies methods of raising and spending funds for specific programs during the coming fiscal year. The budget is a plan that presents financial information summarized by major category of expense for each departmental budget and outlines the operations of the Town of Cary government and its component operating and capital programs. 

 

The approach of the FY 2008 Proposed Budget is to continue with a budget structure and philosophy using basic business principals to guide decisions now and in the future for the provision of our core municipal services.  Over the past year, our organization has refined its statement of values and mission statement and even developed guiding principles and a vision statement to help improve and clarify both how we conduct ourselves and to provide a framework to describe the sense of community we encourage through our comprehensive goals and initiatives.  With these guidelines in mind, we have worked through our budget development process with a focus on providing high quality services in an efficient manner while generating revenues equitably.  As part of this process and in everything we do throughout the year, we strive to provide the pertinent information necessary for the Town Council to make the wide variety of policy and program decisions necessary to help determine the future of the Town of Cary.

 

MAJOR ISSUES

 

 

Tax Base Growth

 

During the early 2000s, the impacts of the poor economy, coupled with the Town’s successful growth control measures, combined to slow the rate of revenue growth compared to that of the mid to late 1990’s. Approximately 70% of the Town’s tax base is residential in nature, so reductions in the population growth rate had a significant effect on the level of ad valorem tax revenues.  This is the largest revenue source for the Town and, at $57 million, it comprises 53% of all General Fund revenues.   With the recovery of the economy experienced over the last few years, the Town of Cary has gradually bounced back from its recent low in annual tax revenue growth of 2.5% in FY 2005 to an expected growth in tax revenue of 5.7% in FY 2008.  This is compared to the average annual growth rate of 11% from FY93 to FY01.  The recommended budget for FY 2008 maintains a tax rate of 42 cents per $100 of assessed value. 

 

A historical perspective of the Town’s assessed value (tax base) growth since FY 1995 is provided in the graph below.  The extremely high growth rate in 2001 reflects property revaluation which is done every eight years in Wake County.  In FY 2001, the tax rate was reduced from 54 cents to 43 cents to maintain a revenue neutral tax rate.  The next property revaluation is scheduled for 2008 which will impact tax base projections for fiscal year 2009.  While there have been some recently approved developments in Cary’s jurisdiction within adjacent Chatham County, the assessed value there is only about $94 million, which is less than 1% of Cary’s total assessed value

 

 

The Town has started to see an increase in the number of new single family (SF) permits being issued in the last several years.  During 2002, only 466 new permits were issued compared to an average of about 1,500 per year in the mid 90s.  The assessed value on which tax receipts are calculated is based on what has been built by the prior January 1 meaning that FY 2008 revenues are based on values as of January 1, 2007.  While Cary’s tax base is much higher than it was in the mid 90s and it takes more growth each year to have the same percentage increase, these higher numbers of new permits will help the tax base grow over time as the units are built and included in future tax base calculations.  The graph below shows new single family residential permits issued since 1990.

 

Sales Taxes

Projected sales tax revenues totaling $25 million in FY 2008 make up 23% of all General Fund Revenues.  The historical growth rate of this major revenue source was greatly impacted by the economic slowdown of the early 2000s, but the current economic recovery helped this revenue source recover in recent years and an overall growth rate of 5.8% is forecasted for FY 2008.  Cary has experienced a slower growth rate in this revenue than some other jurisdictions in Wake County.  Sales taxes are distributed within Wake County on a per capita basis.  As Cary’s population growth rate has slowed compared to the rest of Wake County, it receives a smaller portion of the total distribution amount.  Had Cary’s percentage distribution remained constant since its peak in FY 2001, Cary would be receiving about $700,000 more in FY 2008.  Despite this smaller distribution share, the economy’s recovery and increases in consumer confidence are expected to yield steady growth of 5.8% in sales tax for FY 2008. 

 

The graph below depicts the historical growth of sales tax revenues and includes the one cent (Article 39) which is distributed based on sales delivered in Wake County, the two half cents (Articles 40 and 42) which are distributed state-wide based on the population of each county, and the one half cent (Article 44) which is distributed based on a combination of both approaches mentioned.  Article 44 was approved in December 2002 to replace the expiring Inventory Tax Reimbursement and Intangibles Tax Reimbursement revenue sources.

 

 

Investment Earnings

Existing cash balances on hand due to current receipts, fund balances, and project funding are often invested temporarily to earn the Town income in the form of investment earnings to help offset total income needed for Town services.  While the sagging economy of the early 2000s drove debt service rates lower in the bond market, it also reduced the amount of return available for the Town’s investments.  Interest earnings in FY 2001 were $8.7 million across all governmental funds, while net investment earnings in FY 2004 in these same funds were only $1.3 million, which is a drop of $7.4 million or 85%.  As these market changes have affected the Town’s income over the past few years, the Town has had to adapt its expense and pay-as-you-go capital planning accordingly.   If the recent economic recovery continues, total investment earnings should be about $11.4 million or 4% higher than those expected in FY 2007.  For the general fund specifically, investment earnings are expected to increase from their recent low in FY 2004 of $554,056 to nearly $2.8 million in FY 2008.  For comparison purposes, each penny on the tax rate in FY 2008 is expected to generate $1.3 million in revenue, so the Town’s stronger investment earnings are helping to generate the equivalent of two cents worth tax revenue.

 

Debt Service

Financing decisions and the rate of capital investments of past Councils have been shaped by a variety of funding philosophies and the health of the economy in general.  Beginning in fiscal year 1999, the Town decided to leverage its debt capacity in the general fund to increase its rate of investment in Town infrastructure including streets and parks.  The flexibility to afford additional capital improvements with existing resources has changed dramatically over the past several years.  By managing operating cost increases and adjusting programs and their related cost recovery rates, the Town has maintained its healthy level of general fund operating margin (the difference between revenues and operating expenditures that is available to pay debt service).  Since fiscal year 2002, the Town’s operating margin has ranged from a high of 29% of revenues to a low of 15%.  The FY 2008 budget reflects an operating margin of 19% or about $17 million.   Over this same time period, however, the level of debt service being paid by the general fund has risen from $1.7 million in FY 2002 to $13.4 million in FY 2008.  In addition, debt service is expected to increase to $18 million in FY 2009 as principal payments from a debt sale made in FY 2007 become part of our annual payment structure.  Thus far, the level of operating margin available has been able to absorb the debt service increases.  However, because the level of anticipated debt service is expected to consume all available operating margins by FY 2009, there will be additional revenues needed as well as incremental revenues associated with future debt funded capital investments.

 

Maximizing Existing Resources to Continue Advancing the Quality of Life

 

Operating Margin

Ad valorem revenue growth, after a ten year low of 2.5% in FY 2005, is expected to rebound slightly in fiscal years 2007 and 2008 as a reflection of the recent resurgence in single family permit activity.  While these increases are a welcome change from recent years, they are not strong enough to create operating margins like those of the 1990s.  Operating margins from FY 1992 through FY 2002 averaged nearly $15 million annually.  As the graph below illustrates, the rate of debt service growth (in red) and steadily climbing expense growth (in blue) has put increasing pressure on the rate of revenue growth (in black).  Operating margin is demonstrated in the graph by the area where the revenues, shown in black, are still visible since they exceed debt service and expenses.  The proposed budget reflects an operating margin after debt service of approximately $4 million or about 4%.  This operating margin is being consumed by recommended pay-as-you-go funding of capital projects.

 

 

 

Debt Capacity

Fiscal Year 2003 marked two significant milestones in Cary’s debt history.  At the beginning of FY 2003, the Town appropriated the last of its bond authority for streets and park facilities that was approved by the voters in 1999 ($63 million for streets and $10 million for parks).  Realizing that the Town intended to continue improving street capacity and park facilities, the Town held the largest combined municipal bond referendum in North Carolina in 15 years:  $130 million for streets and $30 million for park facilities.  In 2005, Cary continued its tradition of ensuring infrastructure is in place when needed by beginning to execute plans for a major water reclamation facility that is necessary for future capacity and to meet an inter-basin transfer certificate agreement to return water to the Cape Fear River basin by 2011.  This project is being undertaken regionally and includes as project partners the towns of Morrisville, Apex, and Holly Springs.  To help finance the Western Wake Regional Wastewater Management Facility (WWRWMF) in the most affordable manner, Cary held a $110 million general obligation bond referendum which was approved by Cary voters.  Included on the same ballot was an additional question for voters regarding $10 million in general obligation bond authority for the purchase of open space which was also approved. 

 

The general obligation bond referendum authority being recommended for appropriation in FY 2008 includes $31.4 million for transportation projects, $4.8 million for park projects, and $81.2 million for the Western Wake Regional Wastewater Management facility.  The current appropriation authority remaining from each of those referendums after subtracting the authority being allotted to projects in FY 2008 is as follows:

 

·         2003 $130 million transportation bond:  $63.6 million remaining

·         2003 $30 million park bond:  $20.9 million remaining

·         2005 $110 million west plant bond:  $15.9 million remaining

 

Debt Affordability

With $160 million in newly approved debt authority for streets and parks comes a great deal of responsibility.  The cost of borrowed money remains relatively low compared to historical levels, but it has been rising slightly over the last year.  While lower interest rates are a great incentive to leverage the Town’s remaining debt capacity, being able to repay the related debt service each and every year is a major factor when deciding which projects to undertake and how much to borrow.  Debt service related to the 1999 bond authority for streets and parks, costs related to the NC55 widening and an expansion of Town Hall and the debt issued from the 2003 street and park bonds have combined to increase debt related costs in the general fund to $13.4 million in FY 2008 with expected increases of another $4.7 million with the FY 2009 budget to total $18 million.  Following the FY 2006 budget development process, Council focused a great deal of attention on all previously funded capital projects including the liquidity of their various funding sources.  Several work sessions were held to determine options related to minimizing the impact of pending debt service on the General Fund without altering or delaying any projects already approved.  The first approach involved using the Town’s cash balances within existing projects that were not spending right away to prevent borrowing funding for debt funded projects that were ready to spend.  This approach was used up until the time that the variable interest rate market provided an opportunity for the Town to use its borrowing power and triple A credit rating in the spring of 2006.  The Town borrowed $47 million with only interest payments due the first two years (fiscal years 2007 and 2008) and principal being due for the first time in FY 2009.  Increased investment earnings on the bond proceeds during these two years are helping to pay the interest costs the first two years, and then general fund debt service is expected to increase as the principal payments come due in FY 2009.

 

Signs of an economic recovery have begun to materialize in Cary in the form of increased levels of new residential construction and sales tax growth.  How much the higher construction permit volumes of today translate into new tax base as of January 1, 2008 (which will determine ad valorem revenue projections for FY 2009) and just how much sales tax revenues continue to grow will be key indicators of how strongly the Town will be forced to evaluate additional funding options in the future which could include tax increases.

 

 

Fund Balance

The Town of Cary’s fast growth during the 1990s helped develop one of the highest levels of General Fund fund balance in the state of North Carolina.  This major cash reserve created by historically healthy annual operating margin has helped facilitate a large number of cash funded projects as well as provide mid-year funding flexibility regarding special opportunities and emergencies.  The Town Council decided during FY 2003 to reserve six months worth of operating expenditures and debt service for future needs, while designating the remainder for pay-as-you-go capital projects or for special opportunities versus the funding of on-going expenditures.  Since FY 2003, the size of the six month reserve has grown from $36 million to an expected $52 million with the FY 2008 recommended budget.  This increase, combined with various appropriations of fund balance for capital projects since that time have combined to reduce the designated amount available for additional capital from $28 million in FY 2003 to about $2 million by the end of FY 2008.  The graph below shows the distinction between the “six month reserve” level and the amount designated for capital since fiscal year 1989.

 

 

While fund balance levels are a key consideration when bond rating agencies (Moody’s, Fitch, Standard & Poor’s) evaluate the risk associated with future borrowings of the Town, there are many other factors considered as well.  Such items that are considered heavily when considering awarding Cary’s AAA rating include evidence of a strong and proactive administration, effective debt management with moderate to low debt levels, a vibrant or diverse economy, and strong finances.  As future capital opportunities arise and various financing options are considered, fund balance targets and appropriations should be considered as a viable option for a one-time funding source, realizing that it is extremely difficult to replenish, especially during tough economic times and periods of slow tax base and population growth. 

 

Impact of Declining Operating Margin

Fiscal Year 2008 represents a very interesting mix of several factors that have affected operating margin over the past several years:

·      Revenue growth from new tax base, although showing signs of growth recently, is well below that of the late 1990s and will likely never reach double digits again

·      Operating expenditure growth has been limited to maintaining service levels in most areas with the exception of staffing, operating, and maintaining several new facilities (Tennis Center, Skate Park, SAS Soccer Park, USA Baseball)

·      Debt service in FY 2008 is projected to grow by $169 thousand to $13.4 million and is expected to reach $18 million by FY 2009.  There is typically a delay between the time a project is approved and when the cash is actually needed to pay for construction since funds are usually borrowed just before the related cash is needed so debt service payments don’t become due before the projects are incurring costs (see the “Debt Affordability” section above).

 

While healthy levels of General Fund fund balance exist to assist with capital purchases and one-time emergency situations, it is not a sound financial planning practice to pay for long term operational expenditures with fund balance or other non-recurring sources of revenue.   This is especially true when current forecasts indicate as much as a $3 million deficit for Fiscal Year 2009. 

 

 

Options for Creating Additional Operating Margin

The recent conversion to curbside collection and recycling program changes helped increase the portion of costs recovered and have helped increase general fund operating margin by approximately $1.5 million.  The solid waste fee was reduced from $11.50 to $7.67 in FY 2001, which equated to about $1.5 million less in annual revenue until FY 2006 when the fee was raised to $11.75.  It is recommended to continue the same rate of $11.75 for solid waste services in FY 2008, as the cost recovery percentage is expected to climb to 71% from a low point of 47% in FY 2004.  The cost recovery level associated with the automated curb side solid waste and dual stream recycling programs will continue to be monitored for improvement and possible additional fee increases in the future (each $1 on the $11.75 monthly fee is expected to generate about $432,000 in FY 2008). 

 

The largest cause for decreased levels of operating margin over the past decade is the growing amount of debt service that has been absorbed within the general fund with no tax increases.  Over this same time period, a one cent decrease was approved in FY 2002 changing the rate from 43 cents to 42 cents.  In the FY 2008 budget, each one cent on the tax rate is expected to yield about $1.3 million in revenue.  Since FY 1994, four bond referendums have been approved by the voters authorizing $242 million of general obligation debt for streets and parks with the understanding that the potential tax increase resulting from all of that debt could be as much as 14 cents on the tax rate once all the debt is issued (all tax rate impacts here have been adjusted for property revaluation impacts in 2000). 

 

Other initiatives to help create and/or reduce the impact on operating margin totaling about $9 million for the next couple of years (with $5.8 million recurring annually) have been initiated recently including:

 

·       raising the business license fees effective for FY 2007 for the first time since 1990 (expected to generate an additional $650,000 in FY 2008)

·       reducing employee average raise amounts in FY 2006 (saving about $320,000 annually)

·       increasing the monthly solid waste and recycling fee from $7.67 to $11.75 (expected to generate about $1.7 million in additional revenue in FY 2008)

·       delaying the pending $47 million debt sale for already appropriated street and park projects beyond FY 2006 and then approving a variable rate mechanism that will delay principal payments until FY 2009 (delaying $4 million annual debt service beyond FY 2006 and full payments until FY 2009)

·       leveraging the buying power of Blue Cross and Blue Shield as the Town’s new third party administrator of our health and dental self-insurance fund in FY 2006 (helping to create savings versus budgeted funds of $1.3 million in just the first year)

·       updating the parks and recreation fee system in FY 2006 (expected to generate about $150,000 annually)

·       beginning the conversion to voice over internet protocol (VOIP) phone system that will save $21,000 or 2% in FY 2008, another $50,000 in FYs 2009 and 2010, and at least $171,000 annually upon full conversion in FY 2011, or 17% of the Town’s existing $1 million in phone related costs.

 

 

The Balance Between Revenue Growth and Expenditure Growth

 

Historically, the NC General Assembly has given local governments a limited range of responsibilities for services and capital facilities and a limited set of revenue sources to meet those responsibilities.  Over an extended period of time, local governments need to develop and maintain a focus on community priorities within the limits of their responsibilities.  Having this prioritization structure and focus assists local governments in the struggle to balance revenues and expenditures as well as maintaining a strong and stable financial position.

 

During the decade of the 1990s, the Town of Cary benefited financially from the booming economy and an exceptionally high growth rate in both population and assessed value.  Many of the Town’s major revenue sources are largely driven by population such as ad valorem taxes, building permits, sanitation fees, recreation fees, cable television franchise fees and vehicle license fees.  Other major revenue sources driven by population that are actually distributed through the state or county on a per capita basis include sales taxes, wine and beer taxes, and Powell Bill funding for local street improvements.  Due to Growth Management efforts and a slowing economy, both the Town’s population and revenue growth slowed dramatically in the early 2000s.  One of the benefits of the high growth levels was large amounts of operating margin (revenues less expenses) that enabled the Town to self-fund many large projects and new priorities.  For example, from FY 1998 through FY 2002, the Town was able to fund $130 million, or about 52% of its entire General Capital Program with cash generated either from operating margin, grants, or capital reserve revenue sources. 

 

The revenue reductions discussed have been coupled with significant service level increases in the form of new appropriations to roads, parks, specialized facilities, economic development funding for schools, affordable housing, and the initiation of a transit program.  In addition to the initial capital costs to build many of these facilities, some of them require additional staffing to maintain and program their use.  General Fund operating margin before debt service has actually increased by $7 million from $10 million in FY 2003 to $17 million in FY 2008.  However, over that same time period, debt service has grown from $5 million to $13 million, more than canceling out the increase in operating margin.  Without significant shifts toward increasing revenues through further increases in existing fees, or decreasing expenditures in the very near future, the excellent financial condition of the Town may require consideration of an increase in property taxes.

 

Town staff has a history of being very frugal in its application of new resources to accomplish both existing and new tasks by not adding people or new funding until it is absolutely necessary to achieve the Town’s goals.  In addition, there is recognition within the organization that most often, people are the most expensive solution to any problem.  Many of the recent privatization efforts the Town has undertaken and studies related to operational improvements and efficiencies were detailed very thoroughly in the series of Operation Worksessions held with Council during the Fall of 2004.  In response to the dynamics of the past five years, the staff has taken an even harder look at operations to help reduce and control costs and examples of some of these initiatives are identified below: 

 

·               Began conversion to automated curbside solid waste collection and dual stream recycling in FY 2006 and expect full conversion to be in place by the beginning of FY 2008

·               Reduction of eight positions in Inspections & Permits (5 inspectors, 3 permit staff) when the number of new permits being issued dropped in 2003 – added three inspectors and one permit staff positions back in FY 2007 and recommending adding another three in FY 2008 given the resurgence in the number of new permits and resulting inspections – will still be below the related staffing levels in 2003

·               Discontinuation of the residential plan review program

·               Did not fill Recycling Coordinator vacant position (reassigned the majority of duties and increased a 30 hour position to 40 hours to handle the remaining workload)

·               Reduction of two positions in Engineering  in 2003 (development inspections manager and projects administrator)

·               Contracting janitorial services, landscaping, right of way and town facility mowing

·               Reduction in the minimum staffing on aerial ladder units in the Fire Department from 4 to 3

·               Change in approach to rising Health and Dental Insurance costs by encouraging more consumerism

·               Consultant studies on operations and staffing efficiencies at all utility plants and fleet operations

·               Reallocating four sworn officer positions from elementary school resource officer positions to higher priority objectives (two to new 9th grade centers, one to patrol and one to investigations)

·               Class and pay study approach changes to not have associated automatic increases with grade changes

·               Required a 10% reduction across the board in training and travel expenses for FY 2006 after holding amounts flat for the last several years

·               Required a 3% reduction across the board in non utility operating and maintenance expenses for FY 2006

 

 

GENERAL FINANCIAL CONDITION OF THE TOWN

 

FY 2008 budget recommendations have been made relative to the current overall financial condition of the Town and to meet the goals set by Council for the future of the Town.   The Town’s financial condition continues to be above average, according to the rating agencies, currently providing adequate liquidity in a better economic environment than that of four years ago.  All three major national bond rating agencies have awarded the Town of Cary their highest possible rankings, a move that reaffirmed Cary’s financial strength by Moody’s and Fitch, which rated Cary Triple-A in 1998.  Standard & Poor’s also decided to raise its 1998 rating of Cary from AA+ to the coveted Triple-A.  These ratings allow the town to save tax dollars when borrowing by gaining lower interest rates on bond issuances. 

 

The Town has maintained a strong cash position, and property tax revenues consistently increased during the 1990s, allowing the Town to avoid property tax rate increases since Fiscal Year 1990.  Since then, any adjustments to the tax rate have been for revaluations, except in FY 2002, when the tax rate was dropped by one cent from 43 to 42 cents per $100 of property valuation.  While revenue growth has continued, an overall slowdown in the growth rate has been experienced compared with that of the 1990s, with a slight resurgence from a recent low in tax base growth of 1.5% in FY 2005 to a projected 5.7% for FY 2008.  Past strong population and commercial development has resulted in the need for a sizable and aggressive capital improvements program for both general and utility needs.  Due to these growing infrastructure needs and reduced growth rate, the Town can no longer depend on its financial reserves to the extent it has in the past.  Alternative financing options must be sought which will enhance funding flexibility and continue to ensure cost effectiveness.  While the Town has traditionally funded major capital needs with cash, recent plans to leverage the Town’s borrowing power by increasing the use of debt financing are evident with the resulting increases in debt service during the past few years.  Financial reserves over and above Council’s six month goal for fund balance have been leveraged, but their ability to fund significant capital requirements in the future will be minimal.  These changes will affect future operating budgets with increased debt service and investment income fluctuations reflecting shifts in cash balances.  Acquiring additional debt without existing margin will require some combination of tax increases, additional revenue sources, and/or expenditure reductions to create the amount of margin necessary to service the debt load pending in FY 2009 (see “Debt Affordability” section above”).

 

The Town’s strong financial reserves have provided significant flexibility in the past allowing the Town to move quickly to take advantage of economic opportunities and/or begin new projects in the middle of the year.  Plans for the Town’s financial actions should include consideration for maintaining flexibility for periods of both economic growth and downturns.

 

REVIEW OF REVENUES

 

General Fund

Most of Cary’s general fund revenue sources are dependent on Cary’s existing population and growth from year to year is heavily dependent on the number of new residents (permit fees, assessed value, sales taxes, etc.).  Cary's rate of population growth has decreased to an estimated 4.3% as of July 1, 2006 after the double-digit growth experienced during much of the 1990s.  While a slowing economy and growth management practices have combined to encourage a slower growth rate, the recent economic recovery has coincided with a slight

increase in the growth rate.  Council’s target is to have a 3% to 4% rolling five year average population growth, and that reflected below is 3.7% from July 1 of FY 2003 through projected population as of July 1 of FY 2007.

 

 

 

Revenue assumptions have been developed according to the effects of the economy and estimated population growth levels as they directly impact many of the Town’s revenues such as ad valorem taxes, permit and inspection fees, solid waste fees, sales taxes, utility franchise tax, wine and beer tax, inventory reimbursement tax, cable TV franchise fees, and recycled goods. 

 

The General Fund Revenues for Fiscal Year 2008 total $109 million which is a 4.3% increase versus estimated revenues for Fiscal Year 2007.  This growth rate is bolstered by $3.1 million in ad valorem receipts and $1.3 million in sales taxes. 

 

 

     

 

The Town's major source of revenue for FY 2008, the property tax, is based on January 1, 2007 assessments, which are projected to increase 5.7% over the estimate for FY 2007.  The Cary Town Council sets the tax rate, currently 42 cents per $100 of assessed value, each year as part of the budget process. The tax rate for the year becomes official when the new budget is adopted annually in June.  The tax rate for Fiscal Year 2008 is recommended to remain at 42 cents per $100.  The marginal growth in assessed value will help provide funding to continue essential services at current levels in the Town’s General Fund.  The tax base in FY 2008 is estimated at just over $13.6 billion, which includes real and personal property.  The 42 cent rate is expected to provide $57.4 million in revenue.  One penny on the tax rate generates approximately $1.3 million in revenue for the Town. 

 

For the Town of Cary, the focus is also on the local issues and the effects of growth on our ability to maintain our revenue streams.  Cary was able to get credit for its fast pace of growth during the 1990s by having a special census done in 1998 which increased its official population count relative to other municipalities in the county.  However, the 2000 decennial census caused a reallocation of the distribution of sales tax revenue from retail sales.  The Town of Cary’s share of sales tax revenue is dependent on its population as a proportion of Wake County since sales taxes are distributed within Wake County on a per capita basis.  Since Cary’s population growth rate has slowed compared to the rest of Wake County, it receives a smaller portion of the total distribution amount.  Had Cary’s percentage distribution remained constant since its peak in FY 2001, Cary would be receiving about $700,000 or 3% more in FY 2008 sales tax revenues.  Despite this smaller distribution share, the economy’s signs of recovery and increases in consumer confidence are expected to yield a steady growth of 5.8% in sales tax.  As the Town’s population growth changes in comparison to other municipalities and unincorporated areas in Wake and Chatham Counties, Cary’s share of this major source revenue will adjust accordingly.  The following graph quantifies the effects of the factors discussed above (local, state, and national) on the Town of Cary’s general fund revenue stream from FY 2001 through budgeted FY 2008.

 

 

 

 

Utility Fund

Utility Fund revenues are budgeted at $48.5 million for FY 2008 and reflect a full year of Morrisville customer generated revenues following the April 3, 2006 merger of the Morrisville water and sewer system with the Town of Cary system.  Per the merger agreement, Morrisville customers will be paying slightly higher rates to help fund costs of the merger over the anticipated cost recovery period of 15 years.  Total revenue from Water Retail Fees is expected to increase 7%, while total Sewer Retail Revenues are expected to increase 20%.  These increases reflect a blended rate increase of 4.3% for a residential customer using an average of 7,000 gallons per month.  Out year projections of capital investment needs related to the Western Wake Regional Wastewater Management Facility are expected to require additional rate increases in the near future that could approach as much as 10% per year for three years beginning in FY 2009.  Just how much of an increase is required will depend on a number of factors including the rate of continued construction cost increases and the number of new customers that are added to the system over the next few years.  In order to collect enough revenue to recover the largely fixed costs of the utility system, these combined rate increases are required to generate sufficient revenue levels to pay all of the related costs.

 

As was initiated in FY 2002, the Cary rates in place are sufficient to generate $1 million annually for open space acquisition.  Due to revenue bond covenants entered into during Fiscal Year 2002 as a result of debt financing, the $1 million generated during Fiscal Year 2008 will be allowed to fall into fund balance to make sure enough revenue is generated to support all operating and debt service needs.  This $1 million has been appropriated to the Open Space project as part of the FY 2008 budget. 

 

The current tiered utility rate structure shifts more of the financial burden to the high-volume users who require additional capacity to support their peak demand.  The rate structure also currently includes a monthly base charge for all users.  Rate changes in Fiscal Year 2002 included increasing the first tier from 4,000 to 5,000 gallons.  With the Town’s continued emphasis on water conservation measures, the rates provide a financial incentive for the high-volume users to conserve.  As recommended in the Water Conservation and Demand Management Plan, adopted by Council in April 2000, the tiers are designed to encourage customers to maintain their water consumption at an efficient level.  The changes were adopted with implementation in March 2001, and primarily target excessive irrigation.

 

Other revenue sources in the Utility Fund include connection fees, pretreatment fees, sewer wholesale service, bulk water sales, and interest income.  Total revenues in the Utility Fund are projected to increase 11% compared to the FY 2007 estimated revenues.  Fund balance levels are higher with approximately $24 million in FY 2003 compared to about $37 million at the end of FY 2008.  Council’s direction regarding the level of the utility fund balance to target of 75% of annual operating expenditures and debt service is consistent with ensuring cash flow needs are met and that sufficient reserves exist to buffer any dramatic weather changes that may occur (i.e. a very rainy season).  Fund balance amounts higher than this target in the past have been used for an $11.2 million transfer for open space acquisition in FY 2002 and another $13.5 million transfer to help offset utility capital costs related to involuntary annexation areas in FY 2003.  Growing debt service needs related to infrastructure investments are continuing to increase revenue requirements in the Utility Fund.  The May 3, 2005 general obligation bond referendum of $110 million was approved by Cary voters to help finance the Town’s share of a new regional wastewater management facility and another $10 million general obligation bond referendum was approved on that date for the acquisition of open space.  Including the FY 2008 budget, $94 million of the wastewater bond and all of the $10 million open space bond funding, which was appropriated in FY 2007, will have been appropriated. 

 

As the chart below illustrates, Utility Fund revenues have been increasing to help afford related debt service and operational cost increases.  The rate of debt service growth (in red) and steadily climbing expense growth (in blue) has put increasing pressure on the rate of revenue growth (in black).  Operating margin is demonstrated in the graph by the area where the revenues, shown in black, are still visible since they exceed debt service and expenses.  The recommended budget reflects an operating margin of approximately $4.7 million or about 4.9%.  This operating margin is being consumed by Morrisville merger related recovery cost transfers to the capital program and the generation of $1 million in open space funding.

 

 

 

REVIEW OF EXPENDITURES

 

General Fund and Utility Fund Total Expenditures Summary

General Fund expenditures and inter-fund transfers total $107.8 million for FY 2008.  Included in this amount is $3 million in the form of fund balance transfers to support Fire, Parks, and General Capital Projects.  This expenditure level reflects a $16.7 million decrease compared to FY 2007 for capital transfers.  Debt service is budgeted at $13.4 million in FY 2008 and is expected to increase to $18 million in FY 2009.  Utility Fund expenses and transfers total $51 million including a $3.2 million transfer to water and sewer capital projects.  This also includes $11.9 million to cover utility-related debt service requirements. 

 


 

General Fund:  FY 2007 includes capital transfers of $19.7 million ($2.6 streets, $4.8 General Government, $.8 Fire, $11.5 Parks with $10 of that for an aquatic facility); debt service has increased from $3.2 million in FY 2003 to $13.4 million in FY 2008

Utility Fund:  FY 2002 includes an $11.2 million transfer to the Open Space Capital Project, and FY 2003 includes a $13.5M transfer to help fund water and sewer capital requests related to Town initiated annexations effective June 30, 2003.  Additionally, debt service has increased from $7.3M in FY 2002 to $12.6 million in FY 2008.

 

 

Major Personnel Impacts

The demand for services has continued to grow to keep up with the demand for high quality services even as the Town has increased service levels with special facilities (e.g. SAS Soccer Park, USA Baseball).  In addition, as the number of new permits has increased, so too have our related development approval demands, the number of related inspections, and ultimately our number of citizens requiring services and the related infrastructure maintenance necessary to create the exceptional environment expected.  In order to maintain current essential service levels and to support upcoming capital projects coming on-line, 41.25 new positions, 38.25 in the general fund and 3 in the utility fund, are recommended in the FY 2008 Budget.  The staffing ratio for FY 2008 is expected to drop compared to the last few years to 9.1 employees per 1,000 population as portrayed in the graph below.   Population figures are as of the beginning of each fiscal year and the July 1, 2007 population estimate is 123,633.

Public Works and Utilities (PWUT)

The FY 2008 budget includes 15.5 new positions directed to various Public Works and Utilities functions.

These new positions range from a part-time Customer Service Representative I to support increased call volume workload generated by the addition of Morrisville customers to the Town’s utility system, to the addition of a new jet crew to assist the three existing crews in maintaining the Town’s sewer system, and to the addition of a fourth traffic signal system team to maintain the Town’s traffic signal network.

 

Other position additions include: one senior engineer position to address tasks currently handled by the Director of Public Works and Utilities that have become increasingly difficult to accomplish as the Director position continues to focus on higher priority items; one solid waste crew leader to help the Town meet growing demands for sanitation service; one concrete crew laborer which will allow the Town to produce its own concrete which creates a cost savings and improves efficiency; one inflow/infiltration team to focus on the detection of problems in the Town’s sewer collection system and pump stations; one plant manager for the Western Wake Regional Wastewater Management Facility to begin working through design components of the facility and gain an understanding of the facility’s infrastructure; one construction team to repair damaged water and wastewater collection system lines and components and conduct street maintenance and one line locator position to assist existing staff in line locates.

 

Engineering

The FY 2008 budget includes five new positions directed to various Engineering functions.  One engineering development review manager has been added to oversee Engineering’s responsibilities and interests in the development review process.  One stormwater technician has been added to help address workload issues created as the number of inspections of denuded acres has increased by 741 since FY 2002.  An engineering field technician has also been added to relieve increased greenway inspection workload created by increased development activity.  A new engineer position has been included in the FY 2008 budget to add staff capability with more specialization in the issues and details related to building projects (such as structural, mechanical and electrical).  Lastly, one utility engineer position has been added to better distribute the growing workload among staff.  This last addition will bring the total number of utility engineers on staff to seven.

 

Inspections & Permits

The Inspections and Permits department experienced a 40% increase in the number of inspections performed during calendar year 2006, with the first half of FY 2007 posting the highest monthly averages of the year.  The annual total of 101, 239 inspections exceeded the totals of all previous fifteen years by at least 15,000.  A review of the development projects that have been submitted and/or approved suggests that construction activity is projected to continue at the present rate for at least the next three years.  To address workload affiliated with increased development, three additional Code Official III positions have been included in the FY 2008 budget.

Police

Two additional Police Officer I/Detective positions have been included in the FY 2008 budget to manage increased workload caused by a rise in reported offenses and the complexity of cases being worked.

 

Parks, Recreation, and Cultural Resources

A total of 9.5 positions have been added to the Parks, Recreation and Cultural Resources (PRCR) department in FY 2008.  A parks planning technician has been included to support capital project completion, the production of maps for project analysis and presentation, the development and support of information to be presented on the Town of Cary’s website and to provide assistance with grant production.  A total of 2.5 positions have been added to the Cultural Resources division of PRCR.  These positions include the conversion of the temporary performing arts coordinator to full-time; the conversion of existing 30 hour/week customer service representatives at the Jordan Hall and Page Walker facilities to full-time and the conversion of a 30 hour/week Ceramics Center Aide IV to a permanent, 40 hour/week position.

 

Staffing adjustments at the Cary Tennis Park and the Skate Park also contribute to the PRCR staffing increase.  The FY 2008 budget includes the conversion of five temporary tennis teaching staff at the Cary Tennis Park to permanent, three-quarter time positions.  Additionally, an existing, three-quarter time temporary Recreation Program Assistant at the Skate Park has been converted to a permanent, full-time position.

 

Cary Transit

The Town’s C-Tran system provides both door-to-door and fixed route service to the residents and businesses of Cary.  With the growth of the fixed route service, more time is required for system planning and analysis.  The addition of one transit services assistant in FY 2008 will provide added capacity for analysis of the system, demands for service, revenue generation and expenses.

 

General Government

Several positions are included in the FY 2008 budget to help accommodate the growing size and numbers of details associated with a growing municipality including the following:

·         One buyer position within the Purchasing division to address workload and efficiency issues brought about by a growing number of projects, programs and initiatives as well as an increased focus on policy/procedure compliance.

·         Three positions within the Technology Services department.  One database programmer to help manage requests for assistance with database programs from other departments; one computer systems analyst to better distribute workload and one telecommunications specialist to facilitate the installation of the automated meter reading system and provide capacity to address a growing number of telecommunication needs within the organization.

·         One human resources analyst with the Human Resources (HR)department to remain in compliance with HR staffing guidelines of one HR full-time equivalent position per every 100 positions.  The addition of one analyst will allow the Town’s Human Resources department to maintain the expected level of service to the organization.  Conversion of the existing Employee Safety Coordinator position from 30 hours/week to full time in order to realign the position with organizational needs.

 

 

 

 

 

CAPITAL IMPROVEMENTS BUDGET

 

For the eighth consecutive year, the Town’s capital improvement planning process includes the development of a recommended budget for the coming year as well as a ten-year capital improvements plan.  Prior to this, a five-year plan was used.  The move to the ten-year period provides the Town of Cary with a longer planning horizon to better assess needs and to help facilitate longer-term financial planning.  The CIB funds water, sewer, transportation, fire, parks, recreation and cultural resources (PRCR) and general government (Gen’l Gov’t) projects.  Total recommended appropriations for water and sewer projects in FY 2008 are $185.1 million and all other general project appropriations are $48.8 million yielding a total CIB of $233.9 million.