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Baltimore County, Maryland adopted budget FISCAL YEAR 2012 Kevin Kamenetz Baltimore County Executive ADOPTED BY THE BALTIMORE COUNTY COUNCIL MAY 26, 2011 BALTIMORE COUNTY, MARYLAND ANNUAL OPERATING AND CAPITAL BUDGETS FISCAL YEAR 2012 Kevin Kamenetz County Executive Fred Homan County Administrative Officer Keith Dorsey Director of Budget and Finance John Olszewski, Sr., Chairman, Seventh District Baltimore County Council Tom Quirk, First District Vicki Almond, Second District Todd Huff, Third District Kenneth N. Oliver, Fourth District David Marks, Fifth District Cathy A. Bevins, Sixth District Office of Budget and Finance Historic Courthouse 400 Washington Avenue Towson, Maryland 21204 410-887-3313 www.baltimorecountymd.gov July, 2011 TABLE OF CONTENTS Page LETTER OF TRANSMITTAL 1 ABOUT THIS DOCUMENT 3 SECTION I - INTRODUCTION Budget Message 5 Baltimore County: Location, Demographics, Labor Market, Other Statistics, Government 8 Organization Chart & Principal Officials 14 County Agencies & Purpose 16 Vision, Mission, Priorities & Programmatic Policies 21 Financial Policies and Guidelines 30 Budgetary Procedure 33 FY 2012 Budget Schedule and Process 34 Budget Basis 38 SECTION II - OPERATING BUDGET FY 2012 Total Operating Budget At – A – Glance 40 Budget Summary of Revenues & Expenditures 41 Government-wide Operations by Fund 42 Government-wide by Major Expenditure Categories 43 Budget Overview & FY 2012 Budget Objectives 44 Debt Management 49 Selected Performance Measures 53 Personnel – Staffing, Wages & Benefits 57 Five Year Revenue & Expenditure Trends 63 General Fund Revenue Analysis 65 Average Residential Tax Bill FY 1975 – FY 2012 67 Non-Tax Revenues 71 Multi–Year General Fund Outlook 76 General Fund At – A – Glance 77 FY 2012 General Fund Budget Breakdown 78 Spending Affordability FY 2012 Guideline 79 Special Fund Budget Overview 80 Non-County Governmental Funds 80 SECTION III - CAPITAL BUDGET Page Capital Budget and Capital Improvement Program Overview 83 FY 2012 – FY 2017 Six-Year Capital Program 88 CIP Highlights 90 Bond Information 98 General Fund Contribution to the Capital Budget 101 Capital Budget General Fund History 102 Capital Program Impact on Operating Budget 103 SECTION IV - EXHIBITS AND GLOSSARY Exhibit A Assessable Basis for Property Taxes 108 Exhibit B Revenues and Other Financing Sources Detail 109 Exhibit C Summary of Operating Budgets by Agency 121 Exhibit D General Obligation Debt Outstanding & Legal Limit 149 Exhibit E Metropolitan District Debt Outstanding & Legal Limit 150 Exhibit F Government-Wide Summary of Operating Funds By Agency & Revenue 151 Exhibit G Unappropriated Fund Balances of Non-General Funds 152 Exhibit H Preliminary Unappropriated Fund Balance of the General Fund 153 Exhibit I Government-Wide Budget Summary - Objects of Expenditure 154 Exhibit J Appropriation Summary - Capital Improvement Program FY 2013 - 2017 155 Exhibit K Capital Budget Source of Funding Summary 170 GLOSSARY 172 Kevin Kamenetz County Executive July 1, 2011 Honorable Kevin Kamenetz Honorable John Olszewski, Sr. Honorable Tom Quirk Honorable Vicki Almond Honorable Todd Huff Honorable Kenneth N. Oliver Honorable David Marks Honorable Cathy A. Bevins Dear County Executive and Council Members: I respectfully present the published budget of Baltimore County, Maryland as approved by the County Council on May 26, 2011. This document highlights an $1.9 billion capital program and a $2.63 billion operating budget that includes $1.60 billion in general funds. The budget represents a .13% decrease in total general fund spending over last year’s budget and a .04% increase in on-going general fund expenses. There are no new taxes levied to fund the budget, and the property and income tax rates remain unchanged. It remains consistent with your stated goals and previous budgets and the current economic times. In addition to the $2.63 billion Operating Budget, we anticipate an additional $235,776,533 will be spent through the County’s Enterprise Funds. The activities of the Metropolitan Sewer & Water District, the food services in the public schools, and the Community College’s book store, food services, and daycare centers, are considered proprietary, not governmental funds. The Council does not appropriate these amounts, but the financial information is incorporated into the budget documents for historical comparison purposes. Thus, the total FY 2012 Government-wide Operating Funds (Operating Budget plus Enterprise Funds) actually totals $2,868,191,223 or a 1.75% increase over comparable FY 2011 numbers. During the past several years, we have striven to maintain a stable capital budget through the prudent use of debt and sizable infusions of one-time operating funds. However, due to flat property and income tax revenues, we have only been able to include $636,805 for PAYGO for technological enhancements in FY 2012. The shift back to a reliance on bond funding will cause the County to issue debt at a higher rate than in years past; however, related ratios such as debt to estimated full value and debt per capita are projected to remain close to or below the average of Triple Triple-A Counties throughout the capital program period, FY 2012 – 2017. A key element in our ability to retain our Triple-A bond rating is maintaining a Total Unappropriated General Fund Balance that meets or exceeds the target 5% level. The County’s Revenue Stabilization Reserve Account (RSRA) has a projected FY 2012 ending balance of approximately $84.6 million or 5.5% of the FY 2012 General Fund revenues. In addition, the ending surplus readily available for appropriation is projected to be approximately $68.1 million. Historic Courthouse | 400 Washington Avenue | Towson, Maryland 21204-4665 | Phone 410-887-2450 | Fax 410-887-4049 [email protected] | www.baltimorecountymd.gov 1 Thus, the total “unexpended and unappropriated funds set aside for contingencies” projected for FY 2012 is $153.1 million. Retaining a sizable unappropriated balance into FY 2012 was a reaction to the struggling economy that will continue to impact state and local governments for the next few years. Possible state aid reductions and/or cost shifts to local governments continue to remain a concern. Therefore, for the next few years, until the outlook is clear, we will endeavor to maintain an Unappropriated General Fund Balance near 7% rather than the 5% target level. Immediately after the new Administration took over in December, 2010, 143 vacant positions in general government were immediately eliminated and four agencies were consolidated into existing departments, resulting in $8 million in savings. With this adopted budget, an additional 41 vacant positions have been eliminated. These reductions lower the total number of general government employees by 2.8% over last year. We are in the second year of our two-year labor agreements which include no employee cost-of-living (COLA) adjustments, but grants longevity and step increases and will continue to eliminate the threat of employee layoffs and furloughs in FY 2012. The FY 2012 budget for the Baltimore County Public Schools (BCPS) totals nearly $1.4 billion and reflects growth of $11.8 million, or 0.9 %, from the FY 2011 budget. The General Fund portion of the budget increases by $7.5 million, or 1.1%, primarily due to personnel expenses that fully fund increment and longevity increases and slightly exceeds the County’s maintenance of effort (MOE) requirement. BCPS projects that system-wide enrollment will increase by 864, or 0.8%, for the 2011- 2012 school year, the largest projected increase in 8 years. This enrollment increase, combined with a mere 1% increase in State Aid over last year’s funding, made it necessary to include an increase in teacher/student ratio and class size in this budget. However, Baltimore County will continue to have an average smaller class size than nearly every other major jurisdiction in Maryland. The capital budget also reflects the ongoing economic difficulties by targeting funding to the most essential local government priorities. It provides $104.5 million for capital projects to maintain and preserve our schools and allocates $25 million for roadway resurfacing, $5 million for curb, gutter, and sidewalk repair, and $9.6 million for bridge repair. These are just a few of the highlights contained in this budget. Unlike many jurisdictions at this time, Baltimore County has avoided layoffs, furloughs, hiring freezes, and reductions in services. Thank you for being partners in this endeavor. Respectfully, Keith Dorsey Director of Budget and Finance 2 ABOUT THIS DOCUMENT This document, the Adopted Budget for Fiscal Year 2012, is designed to provide a general synopsis of both the operating and capital budgets for Baltimore County, Maryland. It is the primary volume in a set of four documents: Adopted Budget FY 2012, Operating Budget Supporting Detail, Capital Budget Supporting Detail, and Operating Budget Personnel Detail. The layout of this document assumes that most readers want a concise resource that provides quick answers to basic questions about revenues, expenditures, and staffing. Its smaller size has proven to be less intimidating and more cost-effective for our citizens. Yet, it is still useful as a policy document that communicates the Administration's goals and outlook for the future. However, for those persons who desire to look deeper into the budget, three other volumes provide detail: OPERATING BUDGET SUPPORTING DETAIL This volume provides a Managing for Results component, which was implemented
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