HomeMy WebLinkAboutFin General Fund Reserve Policy____________________________________________________________________________________
FOR CITY CLERK ONLY
Council Meeting: June 17, 2024
Disposition: Resolution 15307
Agenda Item No: 6.a
Meeting Date: June 17, 2024
SAN RAFAEL CITY COUNCIL AGENDA REPORT
Department: Finance
Prepared by: Paul Navazio, Finance Director City Manager Approval: ______________
TOPIC: GENERAL FUND RESERVE POLICY
SUBJECT: A RESOLUTION OF THE CITY COUNCIL OF THE CITY OF SAN RAFAEL UPDATING
THE CITY’S GENERAL FUND RESERVE POLICY
RECOMMENDATION:
Adopt a resolution updating the City’s General Fund Reserve Policy.
BACKGROUND:
The General Fund is the primary operating fund that pays for general services provided by the City, such as
public safety, parks, and library services. The General Fund accounts for all general revenues of the City not
specifically levied or collected for other City funds and expenditures related to the delivery of the City’s
general services. Because such a broad range of critical services are provided through the General Fund,
including public safety, the City must set aside adequate financial resources to protect the City against
unforeseen circumstances and events, such as revenue shortfalls and unanticipated expenditures, including
those caused by catastrophic events.
The City Council adopted a formal General Fund Reserve Policy via Resolution 13832 on November 21,
2014. The policy, which has not been updated since its adoption nearly a decade ago, is intended to:
•Establish target reserve levels and the methodology for calculating reserve levels.
•Establish criteria for the use of reserves and a process to replenish reserves.
The existing General Fund reserve policy includes specific elements, including:
1)Setting of the Emergency Reserve policy level equal to 10% of operating expenditures
2)Establishing a Public Safety Facilities Reserve for purposes of holding one-third of the three-
quarter cent of the voter-approved Measure E transaction and use tax to be used exclusively
for Public Safety Essential Facilities.
3)A separate reserve for non-public safety facilities and infrastructure.
4) Designating an Unassigned Reserve to accumulate funds not otherwise designated or
reserved by the City Council for a specific purpose.
SAN RAFAEL CITY COUNCIL AGENDA REPORT / Page: 2
ANALYSIS:
This agenda item has been prepared to present for City Council consideration revisions to the City’s
General Fund Reserve Policy. The proposed revisions are the result of a review of the current policy in
light of best practices, an analysis of the predictability and volatility of the City’s major General Fund
revenue sources (see Attachment 3), a survey of reserve policies across selected comparable
jurisdictions (see Attachment 4), and in consideration of the evolving economic and legislative
environment that have the potential to impact the City’s fiscal position directly.
The Government Finance Officers’ Association (GFOA) guidelines suggest maintaining a 2-month
operating reserves (17%) but provides that each agency is best suited to establish the appropriate level
of reserve based on the factors listed above. The GFOA’s guidelines in this regard are also generally
most applicable to enterprise funds (whose operations are reliant on monthly collection of user fees).
A survey of General Fund reserve policy levels for agencies within Marin County reflect that most
agencies maintain minimum reserve levels in the range of 15% to 25%, with smaller agencies tending
toward higher reserve levels. Several agencies have also adopted reserve policies that provides for both
and emergency reserve as well as an “economic uncertainty” reserve.
The following is a summary of the proposed revisions to the City’s General Fund Reserve Policy as
incorporated in Attachment A to the subject resolution:
• Increasing the General Fund Reserve Policy level from 10% to 15% of operating expenditures.
This increased reserve level is segmented into two components:
o Emergency Reserve = 10% - to cover expenditures related to unanticipated and
unplanned emergencies.
o Economic Uncertainty = 5% - to buffer the impacts of short-term fluctuations in revenues
due to economic cycles or loss of tax revenues.
• Establishing a definition of “operating expenditures” to serve as a basis for calculating the amount
of funding required to meet the target reserve policy level.
• Updating provisions related to the allowable uses of the General Fund reserve(s) and the process
by which reserve levels are to be restored (when utilized).
• Updating the provision covering facilities and infrastructure reserves to include:
o Eliminating reference to a Measure E reserve within the General Fund reserve policy.
This provision is made obsolete by the establishment of a specific Essential Facilities
Special Revenue Fund (420) that has been established for this purpose.
o Establishing a formal Facilities and Infrastructure Reserve within the General Fund of
$1,000,000. While the current policy does not set a specific dollar amount under this
category, past practice has been to maintain an assigned reserve of $600,000.
• Establishing policy priorities for uses of year-end fund balance within the General Fund that
exceed the reserve levels established by this policy. Priority uses for such funds include:
o Contributions to unfunded liabilities
o Contributions to Self-Insurance fund to address general liabilities and claims
o Contributions to Vehicle and Equipment Replacement Funds
o Capital Projects and deferred maintenance
o Priority one-time projects supporting City Council Goals and Objectives
SAN RAFAEL CITY COUNCIL AGENDA REPORT / Page: 3
FISCAL IMPACT:
There is no direct fiscal impact; the recommendations included in this report would result increase the
General Fund reserve level from 10% to 15% for the fiscal year ending June 30, 2025. Based on current
budget projections, the General Fund reserve level would increase from $9.8 million (10% as of June 30,
2024) to $15.3 million (15% as of June 30, 2025). In addition, the capital facilities and infrastructure
reserve level would increase from $600,000 as of June 30, 2024, to $1,000,000 as of June 30, 2025.
OPTIONS:
1) Adopt the resolution updating the City’s General Fund Reserve Policy.
2) Provide feedback and request that staff return to the City Council with possible revisions to the
proposed General Fund Reserve Policy.
3) Take no action and maintain the existing General Fund Reserve Policy, as adopted November
21, 2014.
RECOMMENDED ACTION:
Adopt a resolution updating the City’s General Fund Reserve Policy.
ATTACHMENTS:
1. Resolution
2. Exhibit A –General Fund Reserve Policy.
3. Redline version of revisions to General Fund Reserve Policy (2014 version)
4. Historical Trend – General Fund Revenues Budget vs Actual (2112/13 – 2023/24)
5. Survey of General Fund Reserve Policies (selected agencies)
RESOLUTION NO. 15307
A RESOLUTION OF THE CITY COUNCIL OF THE CITY OF
SAN RAFAEL ADOPTING A GENERAL FUND RESERVE
POLICY
WHEREAS, the City of San Rafael is committed to ensuring that service to the
public is not avoidably disrupted by natural disasters or unforeseen, negative economic
events; and
WHEREAS, on November 21, 2014, the City Council of the City of San Rafael
adopted Resolution number 13832 establishing a formal General Fund Reserve Policy;
and
WHEREAS, the City’s General Fund Reserve Policy has not been updated since
its formal adoption in November 2014; and
WHEREAS, revisions to the City’s General Fund Reserve Policy are warranted in
light of the current best practices, evolving financial position of the City, and changes to
the economic and statutory environment impacting local government revenues; and
WHEREAS, a discussion of potential revisions to the City’s General Fund
Reserve Policy was agendized at the April 4, 2024, meeting of the City Council Finance
Sub-Committee; and
WHEREAS, the City Council has reviewed and considered the proposed
revisions to the City’s General Fund Reserve Policy.
NOW, THEREFORE, BE IT RESOLVED, that the City Council of the City of San
Rafael does hereby approve and adopt the updated General Fund Reserve Policy that
is attached hereto as Exhibit A
I, LINDSAY LARA, Clerk of the City of San Rafael, hereby certify that the
foregoing resolution was duly and regularly introduced and adopted at a regular meeting
of the City Council of said City on Monday, the 17th of June 2024, by the following vote,
to wit:
AYES: COUNCILMEMBERS: Bushey, Hill & Mayor Kate
NOES: COUNCILMEMBERS: None
ABSENT: COUNCILMEMBERS: Kertz & Llorens Gulati
LINDSAY LARA, City Clerk
CITY OF SAN RAFAEL
GENERAL FUND RESERVE POLICY
PURPOSE
The City’s General Fund Reserve Policy establishes the target level of operating and capital
reserves. Adequate reserves help sustain continuity of City operations and service delivery when
adverse or unexpected circumstances affect the City. Reserves are established to provide resources
required to minimize service disruption in the event of temporary revenue shortfalls or unexpected
one-time expenditures.
This policy is designed to:
• Establish target reserve levels and the methodology for calculating reserve levels.
• Establish criteria for the use of reserves and a process to replenish reserves.
• Establish policy priorities for uses of year-end fund balances within the General Fund that
are determined to be in excess of the reserve levels established by this policy.
.
RESPONSIBILITY
The City Manager shall be responsible for enforcing this policy. The City Manager or his/her
designee may issue supplemental procedures and memorandums that detail specific directions
that clarify this policy. However, such procedures and directives must be consistent and not
conflict with the general provisions of this policy.
POLICY
It is the policy of the City of San Rafael to ensure that there will be adequate financial resources to
protect the City against unforeseen circumstances and events such as revenue shortfalls and
unanticipated expenditures. The Government Finance Officers of America (GFOA) recommends
that reserve levels be directly related to the degree of uncertainty the local government faces: the
greater the uncertainty, the greater the financial resources necessary. Past experience is to be
used as a guide, with particular attention being paid to the following:
• Diversity of revenue base
• Volatility of revenue structure
• Volatility of political environment
• Consistent operating surpluses/occasional or frequent operation deficits
• Uneven cash flows, requiring short-term borrowing
General Fund Reserve Policy – page 2
2
Emergency and Cash Flow Reserve (15% minimum)
The City will maintain an emergency and cash flow reserve equal to 15% of General Fund
operating expenditures, exclusive of one-time expenditures and non-operating transfers. The
Emergency and Cash Flow reserves will be allocated in the following manner:
• Economic Uncertainty (5%) – these funds are generally designated to mitigate periodic
revenue shortfalls due to downturn in economic cycles, and avoid the need for service-level
reductions within a fiscal year.
• Emergency Reserves (10%) – these funds are generally designated to mitigate costs of
unforeseen emergencies and natural disasters.
Budgeted operating expenditures are to be used for the purposes of budget allocations and
projections, and actual operating expenditures are to be used for the purpose of measuring this
reserve at fiscal year-end.
The appropriate level of General Fund reserves will be reviewed annually as part of the budget
cycle.
Facilities and Infrastructure Reserve
A separate Facilities and Infrastructure Reserve is established to provide funding to cover unplanned
emergency repairs to City facilities and infrastructure. This reserve level is established in the
amount of $1,000,000.
Use of Reserve Funds
The General Fund reserve is intended to mitigate the impacts of significant short-term issues,
including unexpected revenue shortfalls, unplanned expenditures, or declared emergencies. The
reserve(s) established by this policy may be expended only when the City Council determines by
resolution that such action is consistent with the purpose and intent of this policy.
It is the intent of the City Council to limit the use of reserves to address unanticipated, non-recurring
needs. Reserves shall not be applied to recurring annual operating expenditures. The reserve may,
however, be used to strategically allow time for the City to restructure its operations in a deliberate
manner (as might be required in an economic downturn), but will only take place in connection with
a City Council adopted long-term plan.
Restoration of Reserve Balances
In the event the balance in the Emergency and Cashflow Reserve falls below the minimum level,
the City Manager shall recommend a plan to replenish the reserves, within a timeframe not to
exceed two years. This recommendation shall be approved by the City Council no later than the
time at which the next annual budget is adopted. Any variance from the stipulations established
within this policy shall require approval by the City Council.
Excess Fund Balance
At the end of each fiscal year the Finance Department will report on the audited year-end fiscal
results. Should the reported fund balance within the General Fund exceed the funding levels
General Fund Reserve Policy – page 3
3
required to meet the reserve levels established by this policy, such funds shall be deemed available
for allocation in several areas, subject to City Council approval. The priority for consideration of
allocation of excess funds should generally be as follows:
1. Payments toward unfunded liabilities, deferred maintenance and asset replacement.
2. Transfers to other funds, as appropriate, to offset year-end deficits within those
funds.
3. Allocation to capital projects with shortfalls in funding sources and/or to provide
matching funds for grant awards.
4. Re-appropriation within the subsequent year’s operating budget to provide for one-
time, non-recurring needs.
Other Considerations
The adequacy of the General Fund Reserve shall be evaluated on an annual basis and in the context
of the General Fund long-term forecast. In addition, this General Fund reserve policy assumes that
there are sound policies and procedures in place to ensure that there are sufficient funds and assets
for the following essential needs:
• encumbrances and other commitments
• projected general liability claims
• projected workers compensation claims
• replacement of vehicles and equipment
• maintenance and replacement of infrastructure
• employee retirement costs
• technology replacement and upgrades
Policies, procedures and funding strategies should be established for each of these areas and, where
appropriate, approved by the City Council.
CITY OF SAN RAFAEL
GENERAL FUND RESERVE POLICY
PURPOSE
The City’s General Fund Reserve Policy establishes the target level of operating and capital
reserves. Adequate reserves help sustain continuity of City operations documents the City’s
approach to establishing and maintaining sufficient reserves to ensure the continuity of City
operations and service delivery when adverse or unexpected circumstances affect the City.
Reserves are established to provide resources required to minimize service dispruption in the event
of temporary revenue shorfalls or unexpected one-time expenditures.
This policy is designed to:
• Establish target reserve levels and the methodology for calculating reserve levels.
• Establish criteria for the use of reserves and a process to replenish reserves.
• Establish policy priorities for uses of year-end fund balances within the General Fund that
are determined to be in excess of the reserve levels established by this policy.
The General Fund is the main operating fund that pays for general services provided by the City,
such as public safety, parks and library services. The General Fund accounts for all general revenues
of the City not specifically levied or collected for other City funds and for expenditures related to
the delivery of the City’s general services.
RESPONSIBILITY
The City Manager shall be responsible for enforcing this policy. The City Manager or his/her
designee may issue supplemental procedures and memorandums that detail specific directions
that clarify this policy. However, such procedures and directives must be consistent and not
conflict with the general provisions of this policy.
POLICY
It is the policy of the City of San Rafael to ensure that there will be adequate financial resources to
protect the City against unforeseen circumstances and events such as revenue shortfalls and
unanticipated expenditures. The Government Finance Officers of America (GFOA) recommends
that reserve levels be directly related to the degree of uncertainty the local government faces: the
greater the uncertainty, the greater the financial resources necessary. Past experience is to be
used as a guide, with particular attention being paid to the following:
• Diversity of revenue base
• Volatility of revenue structure
General Fund Reserve Policy – page 2
2
• Volatility of political environment
• Consistent operating surpluses/occasional or frequent operation deficits
• Uneven cash flows, requiring short-term borrowing
The City’s General Fund Reserves shall be comprised of the following four components:
Emergency and Cash Flow Reserve (1015% minimum)
The City will maintain aAn emergency and cash flow reserve equal to 15% of General Fund
operating expenditures, exclusive of one-time expenditures and non-operating transfers. The
Emergency and Cash Flow reserves will be allocated in the following manner:
• Economic Uncertainty (5%) – these funds are generally designated to mitigate periodic
revenue shortfalls due to downturn in economic cycles, and avoid the need for service-level
reductions within a fiscal year.
• Emergency Reserves (10%) – these funds are generally designated to mitigate costs of
unforeseen emergencies and natural disasters.
Budgeted operating expenditures are to be used for the purposes of budget allocations and
projections, and actual operating expenditures are to be used for the purpose of measuring this
reserve at fiscal year-end.
The appropriate level of General Fund reserves will be reviewed annually as part of the budget
cycle.
Facilities and Infrastructure Reserve
A separate Facilities and Infrastructure Reserve is established to provide funding to cover unplanned
emergency repairs to City facilities and infrastructure. This reserve level is established in the
amount of $1,000,000.
will be maintained for the purposes of (1) sustaining General Fund operations in the case of a public
emergency, such as a natural disaster or other unforeseen catastrophic event; and (2) to cover
sudden operating shortfalls caused by (a) a severe drop in revenues that cannot be sufficiently offset
by a corresponding reduction in expenditures and/or other available resources, or (b) an unforeseen,
unavoidable expenditure that must be paid from the General Fund. Under Governmental
Accounting Standards Board Statement No. 54, this reserve will be assigned.
This reserve level is measured as a percentage of annual operating expenditures. Budgeted operating
expenditures are to be used for the purposes of budget allocations and projections, and actual
operating expenditures are to be used for the purpose of measuring this reserve at fiscal year-end.
Use of Reserve Funds
The General Fund reserve is intended to mitigate the impacts of significant short-term issues,
including unexpected revenue shortfalls, unplanned expenditures, or declared emergencies. Theis
General Fund Reserve Policy – page 3
3
reserve(s) established by this policy may be expended only when the City Council determines by
resolution that such action is consistent with the purpose and intent of this policy.
It is the intent of the City Council to limit the use of reserves to address unanticipated, non-recurring
needs. Reserves shall not be applied to recurring annual operating expenditures. The reserve may,
however, be used to strategically allow time for the City to restructure its operations in a deliberate
manner (as might be required in an economic downturn), but will only take place in connection with
a City Council adopted long-term plan.
Re storation of Reserve Balances
In the event the balance in the Emergency and Cashflow Reserve falls below the minimum level,
the City Manager shall recommend a plan to replenish the reserves, within a timeframe not to
exceed two years. This recommendation shall be approved by the City Council no later than the
time at which the next annual budget is adopted. Any variance from the stipulations established
within this policy shall require approval by the City Council.
Excess Fund Balance
At the end of each fiscal year the Finance Department will report on the audited year-end fiscal
results. Should the reported fund balance within the General Fund exceed the funding levels
required to meet the reserve levels established by this policy, such funds shall be deemed available
for allocation in several areas, subject to City Council approval. The priority for consideration of
allocation of excess funds should generally be as follows:
1. Payments toward unfunded liabilities, deferred maintenance and asset replacement.
2. Transfers to other funds, as appropriate, to offset year-end deficits within those
funds.
3. Allocation to capital projects with shortfalls in funding sources and/or to provide
matching funds for grant awards.
4. Re-appropriation within the subsequent year’s operating budget to provide for one-
time, non-recurring needs.
Other Considerations
The adequacy of the General Fund Reserve Emergency and Cash Flow Reserve shall be evaluated
on an annual basis and in the context of the General Fund long-term forecast. In addition, this
General Fund reserve policy assumes that there are also sound policies and procedures in place to
ensure that there are sufficient funds and assets for the following essential needs:
• encumbrances and other commitments
• projected general liability claims
• projected workers compensation claims
• replacement of vehicles and equipment
• maintenance and replacement of infrastructure
• employee retirement costs
• technology replacement and upgrades
General Fund Reserve Policy – page 4
4
Policies, procedures and funding strategies should be established for each of these areas and, where
appropriate, approved by the City Council.
In the event the balance in the Emergency and Cashflow Reserve falls below the minimum level,
the City Manager shall recommend a plan to replenish the fund within a timeframe not to exceed
three years. This recommendation shall be approved by the City Council no later than the time at
which the next annual budget is adopted. Any variance from the stipulations established within
this policy shall require approval by the City Council along with a statement of findings
supporting the temporary or ongoing modification to this policy.
Measure E – Public Safety Facilities Reserve
In November 2013, the San Rafael voters passed Measure E, a three-quarter percent transactions
and use tax (TUT), effective April 1, 2014. On May 5, 2014, the City Council directed staff to set
aside one-quarter percent (or one-third of these tax proceeds) for the purpose of public safety facility
planning, construction and major improvements. This portion of Measure E revenues are assigned
to this reserve, so that they can be used later to directly fund facility-related costs, or to cover debt
service costs and payments associated with the financing of these improvements.
The City Manager is directed to assign these funds (i.e., the one-quarter percent TUT) to this reserve
as they are received, and is authorized to expend these funds for qualified public safety facility costs
as described above. The City Manager shall report periodically to the City Council on the status of
these funds.
Other Facilities and Infrastructure
The purpose of this assigned reserve is to accumulate funds to be used for the purpose of non-public
safety facility construction and major improvements (e.g., library, administrative and non-safety
buildings, streets and the stormwater system).
Unassigned Reserve
Any available General Fund balances not reserved or included in one of the assigned reserves
will be maintained as “unassigned,” until such time it is allocated to one of the other reserves or
appropriated for General Fund purposes.
RECONCILIATION WITH REPORTING
Total General Fund Reserves will be based on, and reconciled to, the General Fund fund balance.
The sum of the Emergency and Cashflow Reserve, Measure E – Public Safety Facilities Reserve,
Non-Public Safety Facilities Reserve, Unassigned Reserve and contractual commitments (i.e.,
outstanding purchase orders) shall equal the unrestricted and uncommitted fund balance.
Historical Budget vs Actual Variance Analysis
Budget Actual $%
2012-13 57,605,218 63,132,129 5,526,911 9.59%
2013-14 61,495,042 65,793,253 4,298,211 6.99%
2014-15 69,164,980 71,374,058 2,209,078 3.19%
2015-16 73,752,116 75,455,506 1,703,390 2.31%
2016-17 75,725,525 74,354,577 (1,370,948) -1.81%
2017-18 78,080,787 79,414,391 1,333,604 1.71%
2018-19 80,189,911 84,245,518 4,055,607 5.06%
2019-20 84,984,261 84,204,553 (779,708) -0.92%
2020-21 90,191,135 91,068,211 877,076 0.97%
2021-22 94,764,987 95,030,706 265,718 0.28%
2022-23 97,640,802 98,729,172 1,088,370 1.11%
2023-24*100,017,060 103,560,733 3,543,673 3.54%
* Estimate for FY 2023-24
Variance
General Fund Revenues
-4.00%
-2.00%
0.00%
2.00%
4.00%
6.00%
8.00%
10.00%
12.00%
-
20,000,000
40,000,000
60,000,000
80,000,000
100,000,000
120,000,000
General Fund Revenues
Budget vs Actual
Budget Actual %
-4.00%
-2.00%
0.00%
2.00%
4.00%
6.00%
8.00%
10.00%
12.00%
(2,000,000)
(1,000,000)
-
1,000,000
2,000,000
3,000,000
4,000,000
5,000,000
6,000,000
General Fund Revenues
Annual Budget Variance
$%
General Fund Reserve Policy Survey
(City of SausalitoSurvey - March 2024)
General Fund Reserve Level Comments
Belvedere 8,585,407$ 50%
Corte Madera 22,500,000 20%
Fairfax 13,790,000 25%
Larkspur 21,000,000 25%
Mill Valley 32,700,000 15%
Novato 49,300,000 15%
Ross 10,100,063 exceed 30% Operating
$1.5M Economic
San Anselmo 26,559,595 20%
San Rafael 100,000,000 10%
Sausalito 20,340,377 5% Economic
10% Emergency
Tiburon 12,972,850 25%
Marin County 594,209,961 5% to 10%
Other Agencies (selected)
General Fund Reserve Level Comments
Napa 20% 15% - Operating
122,000,000$ 5% - Emergency
Berkeley 280,000,000 30% 16.5% - Economic Stability (55%)
13.5% = Catastrophic (45%)
Santa Rosa 201,600,000 15% to 17%
Benicia 58,470,000 20%
Vacaville 150,275,000 16% - 25% 2-mos. to 3 mos.
20% (Target)
Davis 72,900,000 15% Economic &
Emergency
Woodland 65,400,000 20% Economic &
Emergency
Attachment 4