2019 Annual Budget Adopted Budget Burnsville City Council December 4, 2018 This page intentionally left blank. City Council Burnsville City Council Term Expires Mayor Elizabeth B. Kautz December 31, 2020 Council Member Bill Coughlin December 31, 2018 Council Member Dan Gustafson December 31, 2020 Council Member Dan Kealey December 31, 2018 Council Member Cara Schulz December 31, 2020 City of Burnsville 2019 Budget 1 City Council Table of Contents City Council 1 Table of Contents 2 Guide to Using the Budget Document 5 Introductory Section City Council Governance Model and ENDS & OUTCOMES 7 Organization of Services 13 Community Profile 15 Financial Management & Fund Structure 17 Budget Process & Calendar 22 Distinguished Budget Presentation Award 24 Overview City Manager Budget Message 25 Budget Summary 2019 Budget Summary - All Funds 27 Broad Indicators 34 Grants and Donations 39 Cost Savings Partnerships 42 Award Winning City 45 Financial Plans General Fund 48 Special Revenue Funds 52 Cable Franchise Fee Fund 53 Youth Center Fund 56 Sustainability Fund 59 Grant Fund 61 Economic Development Authority (EDA) Fund 64 Forestry Fund 67 Forfeiture Fund 69 Capital Projects Funds 71 Parks Capital Fund 72 Equipment & Vehicle Fund 75 Facilities Fund 78 Information Technology (I.T.) Capital Fund 81 City of Burnsville 2019 Budget 2 Table of Contents Infrastructure Trust Fund 83 Street Maintenance Fund 86 Improvement Construction Fund 89 G O Debt Funds 91 Enterprise Funds 95 Water & Sewer Fund 96 Storm Water Fund 101 Ice Center Fund 104 Golf Course Fund 107 Street Lighting Fund 109 Ames Center Fund 112 Sidewalk Snowplowing Fund 116 Division & Department Budget Information 2018 Monitoring Report Overview 120 City Council “Ends & Outcomes” – Measurement Summary 121 Division and Department Budgets Leadership and Leadership Development 154 City Council and City Manager 155 Human Resources 159 Administrative Services 165 City Clerk / Elections 166 Finance 169 Communications 174 Information Technology (I.T.) 180 Community Development 185 Community Development 186 Economic Development 192 Planning 201 Protective Inspections 211 Licensing & Code Enforcement 219 Public Safety 228 Police 229 Fire and Emergency Services 242 Parks, Natural Resources, Recreation and Facilities 255 City of Burnsville 2019 Budget 3 Table of Contents Parks 256 Natural Resources 260 Recreation 265 Community Services 274 Facilities 281 Golf Course 285 Ice Center 290 Ames Center 295 Public Works 300 Engineering 301 Streets and Utilities 307 Fleet 313 Capital & Debt Capital Improvements Program 2019-2023 318 Special Revenue Funds 326 Parks Capital 327 Equipment & Vehicle Fund 328 Facilities Fund 331 I.T. Capital 334 Enterprise Funds 338 Debt Analysis 347 Fees & Charges 352 Financial Policies Financial Management Plan and Policies 393 Glossary of Terms 410 Supplemental Information Supplemental Information Tables 414 Employee FTE Information 430 TIF Financial Plans TIF Financial Plan 433 City of Burnsville 2019 Budget 4 Table of Contents Guide to Using the Budget Document This document presents the City of Burnsville’s approved budget. 1) Introductory Section Includes basic information on the budget process, the City’s organizational structure and the City Council’s vision and goals. 2) Overview This section provides a summary overview of the budget and a budget message from the City Manager. There is a narrative of the highlights of the budget including some comparative charts. Also included is an overall financial summary of total budgeted revenues and expenditures for all budgeted funds. 3) Budget Summary An overview of the total budgeted revenue and expenditures for all funds. There is a narrative of the highlights of the budget including some comparative charts. 4) Financial Plans This section includes a five-year finance plan for each of the City’s major funds. Each finance plan includes a narrative summary of the financial condition of the fund, including an explanation of major sources and uses of funds. Following the narrative summary is a single page of financial data. The financial data includes actual data for the year 2017; the 2018 projected year-end estimate; the 2019 proposed budget; and projections for years 2020 through 2023. 5) Division & Department Budgets This section includes the budget information by fund and by department. Some of the information presented in this section is also included in the finance plans, but at a different level of detail as it includes budget data at the department level. Each section also includes narrative information about the department budgets and the alignment with the Council’s ENDS & OUTCOMES. Employee FTE tables are included in this section. 6) Capital Improvement Program (CIP) & Debt The five year 2019-2023 Capital Improvement Program is included in this section. A debt study report provides a projection of future debt consistent with the CIP projections. 7) Fees and Charges All approved fees and charges are listed. City of Burnsville 2019 Budget 5 Guide to Using the Budget Document 8) Financial Policies This section includes the Governance Policy and the Financial Management Plan. The City of Burnsville has an adopted Financial Management Plan that helps guide the City’s annual budget development. In addition to the guidance provided by this Plan, annually the Council also provides very specific direction on the maximum amount of property taxes that the Council will consider. The Council also provided some specific direction concerning fees, especially utility fees. A glossary and acronym listing can be found at the end of the Financial Management Plan. 9) Supplemental Information This section includes additional statistical tables and comparison information. 10) TIF Financial Plans (Economic Development Authority) Five-year financial plans for each of the City’s Economic Development Authority’s (EDA) TIF Districts. Each finance plan includes a narrative summary of the financial condition of the fund, including an explanation of major sources and uses of funds. Following the narrative summary is a single page of financial data. The financial data includes actual data for the year 2017; the 2018 projected year-end estimate; the 2019 proposed budget; and projections for years 2020 through 2023. City of Burnsville 2019 Budget 6 Guide to Using the Budget Document City Council's Governance Model The City Council has adopted a fundamentally different approach to governing by focusing on policy, instead of getting involved in organizational management. This initiative begins with establishing a broad framework of desired ENDS & OUTCOMES, seeking to ask the questions: What Good, for Which People, at What Cost? Following are the adopted expectations of the Burnsville City Council. In reviewing the 2019 budget document, strong emphasis has been placed on the City Council’s Governance Model. The Council governs by presenting strategic leadership and articulating a collective community vision, rather than focusing on internal operations. As a result, budget information strives to remain at the broadest policy level by concentrating on achieving desired results instead of emphasizing detailed line items and number of employees. As in previous years, the budget reflects the hard work and dedication of many people. The attention to detail and demonstrated interest in quality services ensures that the recommended budget exists as a realistic target for 2019, striving to fulfill the Council’s broadest and highest policy directive: City of Burnsville Mega END Statement - People find Burnsville an attractive, well-balanced city of residences and businesses, which through a combination of amenities and public/private partnerships, provides a wide range of opportunities for citizens to live, work, learn and play, for a reasonable investment. Community Themes Within this framework, the City Council has adopted eight community themes and defined the desired ENDS & OUTCOMES within each theme. The themes are safety, community enrichment, neighborhoods, development, environment, transportation, City services, and financial management. In the Division and Department Budget section of this budget document, each department’s budget narrative includes a section on the budget’s alignment with the ENDS & OUTCOMES describing how the City goals are being achieved in each area. The City Council’s ENDS & OUTCOMES document is included in the following pages. City of Burnsville 2019 Budget 7 City Council and Management Team Shared Values Statement We believe in and are committed to upholding these values. Our Citizens Effective Decision Making We identify the residents and business taxpayers of An effective decision-making process is critical to Burnsville as our citizens. Working together with getting the City’s work accomplished. We believe that: organizations and institutions, our citizens provide the character, commitment, and authenticity of our - Reaching a decision by consensus is positive community and the resources necessary to define - Consensus can often be reached through working Burnsville’s quality of life. In partnership with others together and having open debate who serve our citizens, we will: - Decisions should be based on factual information, community goals, policies, and input from affected - Provide a variety of opportunities for input and parties feedback from our citizens - There will be times when compromise or split votes - Provide the best possible service to the extent our will occur resources allow - Decision-makers have