Staff Report
PREPARED BY: STEPHEN CONWAY
FINANCE DIRECTOR
Reviewed by: Town Manager, Assistant Town Manager and Town Attorney
110 E. Main Street Los Gatos, CA 95030 ● 408-354-6832
www.losgatosca.gov
TOWN OF LOS GATOS
COUNCIL AGENDA REPORT
MEETING DATE: 05/21/2019
ITEM NO: 8
DATE: MAY 16, 2019
TO: MAYOR AND TOWN COUNCIL
FROM: LAUREL PREVETTI, TOWN MANAGER
SUBJECT: OPERATING AND CAPITAL BUDGETS
A. CONSIDER THE TOWN OF LOS GATOS PROPOSED OPERATING AND
CAPITAL BUDGET FOR FISCAL YEAR (FY) 2019/20
1. CONSIDER THE RECOMMENDED GRANT ALLOCATIONS FROM THE
COMMUNITY AND SENIOR SERVICE COMMISSION AND ARTS AND
CULTURE COMMISSION FOR THE FY 2019/20 COMMUNITY GRANT
PROGRAMS.
2. CONSIDER TOWN PRIORITIES FOR THE ALLOCATION OF AN
ESTIMATED $1.9 MILLION FROM THE SURPLUS PROPERTY
RESERVE.
3. CONSIDER TOWN PRIORITIES FOR THE ALLOCATION OF AN
ESTIMATED $1.0 MILLION FROM THE PROPOSED CLOSING OF
VEHICLE MAINTENANCE AND STORES INTERNAL SERVICE FUNDS.
4. CONSIDER THE TOWN OF LOS GATOS DONATION OPPORTUNITIES:
FY 2019/20 LIST OF TOWN NEEDS
B. CONSIDER THE TOWN OF LOS GATOS PROPOSED CAPITAL
IMPROVEMENT PROGRAM FOR FY 2019/20 – FY 2023/24
C. CONSIDER RECOMMENDED CHANGES TO THE GENERAL FUND RESERVE
POLICY TO MORE ACCURATELY REFLECT ALLOCATION OPTIONS FOR
ADDITIONAL DISCRETIONARY PAYMENTS (ADPS) OF UNFUNDED
PENSION/OPEB OBLIGATIONS
RECOMMENDATION:
A. Consider the Town of Los Gatos Proposed Operating and Capital Budget for FY 2019/20
1. Consider the recommended grant allocations from the Community and Senior
Service Commission and Arts and Culture Commission for the FY 2019/20
Community Grant Programs.
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2. Consider Town priorities for the allocation of an estimated $1.9 million from the
Surplus Property Reserve.
3. Consider Town priorities for the allocation of an estimated $1.0 million from the
proposed closing of Vehicle Maintenance and Stores Internal Service Funds.
4. Consider the Town of Los Gatos Donation Opportunities: FY 2019/20 List of Town
Needs
B. Consider the Town of Los Gatos Proposed Capital Improvement Program for FY 2019/20
– FY 2023/24.
C. Consider recommended changes to the General Fund Reserve Policy to more accurately
reflect allocation options for additional discretionary payments (ADPs) of unfunded
pension/OPEB obligations.
BACKGROUND:
The Proposed Operating and Capital Budget for FY 2019/20 (Attachment 1) is the Town
Manager’s recommended comprehensive financial plan to provide services to the Town of Los
Gatos and address the priorities set by the Town Council. The Proposed FY 2019/20 – 2023/24
Capital Improvement Program (Attachment 2) is a five-year capital improvement plan which
identifies projects to construct and maintain the Town’s infrastructure. Over the course of the
past year, the Town Council reviewed of many of the elements that comprise the Town’s
financial reporting. Of note, the Council received a detailed analysis of its Catastrophic and
Budget Stabilization General Fund Reserve Policies resulting in no changes to the existing Policy
(https://legistarweb-production.s3.amazonaws.com/uploads/attachment/pdf/283767/Staff_Report.pdf)
and reviewed the Town wide fund level cash positions and Town Internal Service Funds.
Incorporated in the FY 2019/20 Proposed Operating Budget is the recommendation to close
both the Vehicle Maintenance and Stores Internal Service Funds.
In addition, on February 19, 2019, the Town Council discussed the preliminary five-year forecast
and a summary of the budget assumptions and sources utilized in the development of the FY
2019/20 Proposed Operating and Capital Budgets (https://legistarweb-
production.s3.amazonaws.com/uploads/attachment/pdf/310312/Staff_Report.FINAL.pdf). The report
provided information regarding current economic forecasts and the expectation that national
and regional economies are expected to gradually slow over the coming years. In addition, the
report discussed the Town’s dependence on three major revenue sources and their sensitivity
to changes in the economy. And lastly, the report highlighted that the
unfunded long-term obligations associated with the Town employee pension plans and Other
Post-Retirement Benefits (OPEB) continue to be a prominent issue with respect to the Town’s
long-range financial planning and financial health.
The Town receives sales tax and property tax updates quarterly. Based on the information
received after the February report, staff updated the forecast accordingly. The updated
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BACKGROUND (continued):
forecast indicates that for fiscal years 2020/21 through 2022/23 the Town faces a challenge of
addressing moderate deficits in the range of $800K to a maximum of $1.2M per year. The
forecasted deficits represent approximately 1.8% to 2.7% of the Town’s proposed General Fund
operating budget for FY 2019/20 out of a total of $45,128,690 (net of capital transfers out of
$6,780,756). For years FY 2023/24 and FY 2024/25, the forecast projects no deficits and a slight
surplus.
Given that the short-term deficits are relatively small and the fact that the forecast is
conservative in terms of revenues and expenditures, staff expects that the Town will not
experience the shortfalls. In past years, the Town has demonstrated the ability to adjust service
levels up to 5% of its General Fund operating budget. Because revenue shortfalls forecasted
are expected to indicate small surpluses in the later years, staff is not recommending that
service levels be adjusted at this time and that the Town maintain a status quo Proposed FY
2019/20 Operating budget. Cognizant of the potential of a transitioning economy, staff
anticipates that more definitive information regarding revenue trends and the necessity to
address service levels will be known at mid-year FY 2019/20 and will inform the budget
development process for FY 2020/21.
Based on the aforementioned reviews, the FY 2019/20 Proposed Operating and Capital Budgets
have been prepared utilizing the methodology and assumptions as presented. The Town
Council is being asked to consider the elements of the Operating and Capital Proposed Budgets
and provide any additional guidance. Any recommended changes and additional guidance to
the Proposed Operating and/or Capital Budgets directed by Council at the May 21, 2019 budget
hearing will be incorporated into the implementing documents to be presented for Council
approval on June 4, 2019.
DISCUSSION:
Both budget documents were prepared with contributions from all Town Departments. Of
particular note, the Finance Department took the lead in developing revenue and expenditure
forecasts, ensuring that the most current information was used in the preparation of the
proposed budgets. In addition, the Department of Parks and Public Works identified high
priority projects for inclusion in the Capital Budget based on its familiarity with the Town’s
facilities, equipment, and infrastructure, and its work with various Town Commissions on these
assets.
In January 2019, the Town Council determined the Strategic Priorities for 2019-2021, providing
guidance to Town staff on workload prioritization. As noted on page A-5 and described in
further detail on page A-49, the budget process begins with the Council’s identification of
Strategic Priorities. As with prior years, the Council is focusing on long-term fiscal stability,
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DISCUSSION (continued):
investment in road conditions, community vitality, traffic mitigation, and parking. In addition,
the Town Council reaffirmed its Core Goals, including Community Character, Good Governance,
Fiscal Stability, Quality Public Infrastructure, Civic Enrichment, and Public Safety (see
Attachment 1, page A-5).
The Proposed Budgets are based on the following principles:
• Develop and recommend balanced budget maintaining services and prudent reserves,
• Continue to make progress on Strategic Priorities identified by the Town Council, and
• Identify opportunities to enhance service delivery through technology and open
government.
FY 2019/20 Operating Budget
The transmittal letter in the Proposed FY 2019/20 Operating Budget provides an executive
summary of the budget, including the fiscal outlook, key budget assumptions, and proposed
adjustments to the operating budget (Attachment 1). Reflecting the continuation of a strong
regional economy, the FY 2019/20 budget is balanced and a modest surplus anticipated.
The Proposed FY 2019/20 Operating Budget includes the Council’s direction from the January
2019 Strategic Priorities session including the reallocation of $3.7 million of the FY 2018/19
budget surplus. The Proposed Budget also includes recommendations for modest staffing
enhancements to facilitate emergency preparedness, participate in regional public safety
communication infrastructure, and augment financial services. In addition, the Proposed
Budget includes investments toward future equipment replacement and increased capacity for
the Town’s technology infrastructure. Taken together, the FY 2019/20 budget proposes to
maintain the Town’s existing high levels of service and provide for minimal staffing changes.
As Council considers the FY 2019/20 proposed budgets, it should be noted that preliminary
estimates for FY 2018/19 indicate the potential of a $2.8 million budget surplus. These
preliminary estimates have identified that $1.7 million of the surplus can be attributed to
potential salary savings.
FY 2019/20 Community Grant Programs and Other Town Support of Community Efforts
The Town provides grant opportunities through an annual, competitive Community Grant
Program. The grants use Town General Fund monies to support local non-profit agencies that
provide human service, art, cultural, and educational programming. The two grant programs
are the Arts and Education Grants and the Human Services Grants.
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DISCUSSION (continued):
In addition to the formal grant programs, the Town Council has provided pilot funding,
subsidized funding, and in-kind donations to various organizations throughout the years. This
includes subsidized lease terms to Town partners including the Los Gatos Museum Association
and Los Gatos-Saratoga Recreation, and in-kind staff support for the Holiday Tree Lighting and
the Children’s Holiday Parade (see Attachment 1, page C-39 for all In-Kind Donations). For the
past two years the Council has provided seed funding for the Reach Your Destination Easily
(RYDE) pilot program to explore low cost travel options for seniors. The Proposed Budget
includes a recommended $10,000 one-time contribution to RYDE for the next fiscal year. In
addition, the Council contributed $22,000 to the Los Gatos Chamber of Commerce’s efforts
towards the formation of a potential Property Business Improvement District.
Since the publication of the Proposed Operating Budget, the Los Gatos Chamber of Commerce
has expressed that it would like to continue to partner with the Town on Leadership Los Gatos
program. As a result, this would return $5,000 to the Non-Departmental line item in the
Administrative Services section and remove the equivalent temporary hours from the Town
Manager’s Office. If Council agrees with this modification, it will be reflected in the Adopted
Budget that is published over the summer. The Chamber contract itself is scheduled for
consideration by the Council on June 4, 2019.
Provided below is a summary of recommend Community Grant Program allocations from the
Arts and Culture Commission and the Community and Senior Services Commission.
Community Arts and Education Grants
Community Grants for Arts and Education were reviewed by the Arts and Culture Commission
(ACC) on March 20, 2019. The grants are evaluated by the ACC for their impact to the
community and their merit as arts and/or educational programs. These grants are not intended
to fund construction or maintenance of physical spaces or objects.
The Commission received seven grant applications asking for almost three times the funding
that was available ($20,000). The Commission unanimously voted to recommend the following
awards:
• $3,000 to the Art Docents of Los Gatos to support their arts programs for students in
grands K-8.
• $4,000 to the Los Gatos Community Concert Association to provide support for their
public concert series targeted primarily toward seniors in the community.
• $3,000 to the Los Gatos High School New Millennium Foundation to provide support for
the purchase of Science, Technology, Engineering, Art and Math (STEAM) technology for
high school classroom use.
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DISCUSSION (continued):
• $4,000 to Los Gatos Morning Rotary Plein Air for support of their annual non-profit
public arts event.
• $6,000 to the Los Gatos Museum Association (NUMU) to both support their museum
explorer program which brings classroom students into the museum, and to support
work in their permanent collection.
The Commission additionally considered an application from the Los Gatos Veterans Memorial
Foundation to hold a dedication celebration, but ultimately recommended not to provide
funding as the application as submitted did not qualify as an arts or educational program.
Community Human Services Grants
Community Grants for Human Services were reviewed by the Community and Senior Services
Commission (CSSC) on April 23, 2019. The grants are evaluated by the CSSC based on their
impact to the community and Los Gatos residents in particular. These grants are not intended
to fund construction or maintenance of physical spaces or objects.
The Commission received fourteen grant applications asking for funding ($179,000) that was
well beyond what has been historically allocated. The Commission unanimously voted to
recommend the following awards totaling $107,500 to be distributed as follows:
• $10,000 to Counseling and Support Services for Youth (CASSY) to provide mental health
services at Los Gatos High School.
• $13,000 to Live Oak Adult Day Services to provide adult day care services in Los Gatos.
• $25,000 to Live Oak Senior Nutrition to provide meals to residents.
• $500 to the Los Gatos Community Concert Association towards provision of an annual
community concert series.
• $1,000 to the Los Gatos Museum Association for seed funding of an Art and History
Senior Explorer Program; $4,000 to Los Gatos-Saratoga Recreation for Summer
Enrichment School Scholarship Grants.
• $7,000 to Los Gatos-Saratoga Recreation for the Clubhouse Scholarship Fund.
• $15,000 to Los Gatos-Saratoga Recreation for the 55 Plus Program.
• $3,000 to Nextdoor Solutions to provide support services to survivors of domestic
violence.
• $3,000 to Parents Helping Parents for family support services for children with
disabilities.
• $5,000 to Saratoga Area and Senior Coordinating Council (SASCC) for senior support
services; $20,000 to West Valley Community Services toward the Community Access to
Resources Education (CARE) program.
• $1,000 to West Valley Muslim Association as seed funding toward the Duke of
Edinburgh’s International Award USA.
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DISCUSSION (continued):
The Commission additionally considered an application from the Los Gatos High School
Millennium Foundation to provide support for the purchase of Science, Technology,
Engineering, Art and Math (STEAM) technology for high school classroom use, but ultimately
recommended not to provide funding as the application was better suited for the Arts and
Education Grant Program.
Direction for Additional One-Time Monies
As part of considering the Proposed Budget, the Council may provide direction for the
allocation of an estimated $1.9 million Surplus Property Reserve and the estimated $1.0 million
of residual balance available from the proposed closing of the Vehicle Maintenance and Stores
Internal Service Funds. Current balances are estimates and final reserve balances will be
determined upon fiscal year-end closure and audit. If no allocation is made, these monies
would be placed in a Vehicle Maintenance and Stores Residual Reserve for future Council
decision-making.
The Council’s direction may reflect past Council priorities could include the following and/or
other items:
• Town’s Pension/Other-Post Employment Benefit (OPEB) Reserve. In August, the Council
is tentatively scheduled to discuss the Finance Committee’s recommendation(s)
regarding additional payments to the Town’s IRS 115 Pension Trust, OPEB Trust, or
CalPERS.
• Street Repairs to Improve the Town’s Pavement Condition Index. As noted in the report
to Town Council on January 22, an additional investment of $600,000 per year would
increase PCI to 73; an additional $1,300,000 per year would yield a PCI of 75; and an
additional $3,100,000 per year would raise the PCI to 79.
• Downtown Streetscape Project. An initial $1M has been allocated to a future
streetscape design and construction project for Santa Cruz Avenue.
• Downtown Beautification Options. At the April 16 Council meeting, the Council
requested that consideration be given to additional beautification investments during
the budget hearing. The options include:
o Power Washing – Current service levels include pressure washing five times per
year. Staff recently quoted this service in preparation for a new contract and the
cost for increasing this service is $27,685 per year. This service increase would
reduce the per service cost from $5,537 to $4,200.
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DISCUSSION (continued):
o Planter Boxes – Downtown planter boxes are currently maintained by
volunteers. Weekly, routine landscape maintenance for the downtown planter
boxes, including quarterly changes to add seasonal color and create a consistent
look, would cost the Town $65,000 per year.
o Downtown Maintenance – Dedicating staff to the downtown on a part time basis
(four hours per day on weekdays) would cost $50,000 per year. This would allow for
ongoing sidewalk scrubbing, proactive landscape and maintenance work, and quick
responses for spills and cleanups.
If the Council provides direction on these or other items, the budget would be revised
accordingly.
Donation Opportunities - FY 2019/20 List of Town Needs
As part of the budget development process, the List of Town Needs is updated per Town
Council Donation Policy to reflect goods, services, and other contributions that would help
enhance Town services, programs, and events (Attachment 3).
FY 2018/19 – FY 2022/23 Capital Improvement Program
The FY 2019/20 – FY 2023/24 Capital Improvement Program (CIP) sets forth a five-year plan for
proposed streets, parks, and public facility projects (Attachment 2). The transmittal letter
contained in the CIP provides a summary of the program including funding sources, recently
completed projects, and the proposed projects for FY 2019/20. Only the first year of the plan is
formally adopted with funds appropriated by the Town Council as part of the budget process.
During the January 2019 Strategic Priorities discussion, the Town Council affirmed its interest in
completing the remaining reconstruction of the Almond Grove streets, investing in bicycle and
pedestrian improvements, and improving the condition of the Town’s streets. In addition, the
Council identified new projects which include preparing a comprehensive parking plan,
exploring transportation demand management (TDM) ideas (such as the prospect of a
community shuttle), and piloting one-way streets in downtown to alleviate congestion. These
projects as well as others, such as annual street maintenance, are recommended as part of the
CIP. The Proposed CIP for FY 2019/20 includes a total budget of $28.4 million of new and carry-
forward funding.
Town staff go through a rigorous process to evaluate all previously funded projects and
potential new projects when preparing the CIP. There are more needs than available funding,
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DISCUSSION (continued):
and staff recommends high priority projects that are consistent with the Strategic Priorities and
Core Goals.
General Fund Reserve Policy
On Page A-31 of Attachment 1, staff is recommending changes to the General Fund Reserve
Policy to more accurately reflect allocation options for additional discretionary payments
(ADPs) of unfunded pension/OPEB obligations. The proposed modifications are:
The ADP is currently projected at $390,000 for FY 2018/19 (subject to annual updates
provided by CalPERS actuaries). Per Council direction instead of paying future ADPs will
either be allocated directly to CalPERS, the Town’s Pension IRS 115 Trust Fund, or the
OPEB will deposit ADPs into the IRS 115 Trust Fund.
COMMENTS AND QUESTIONS FROM COUNCIL MEMBERS:
Some of the questions raised by Council members are addressed in the body of this report.
Below are responses to additional Council inquiries.
Please explain the General Fund Reserve Status.
The total General Fund Reserves are forecasted at a balance of approximately $22.9 million as
of June 30, 2019. Additional information on the estimated FY 2018/19 and FY 2019/20 year-
end General Fund balances can be found in the Financial Summaries section of Attachment 1.
As indicated in the Operating Budget Transmittal Letter in page A-9, the General Fund reserves
are decreasing from the prior year due primarily to programmed payments to the Town’s
California Public Employees Retirement System (CalPERS) side-fund payoff in June 2014 of $4.5
million dollars, transfers to the CIP program in FY 2016/17 ($7.0 million), FY 2017/18 ($2.4
million), FY 2018/19 ($2.4 million), FY 2019/20 ($5.7 million), and the total of $4.4 million
scheduled payments to the IRS 115 Pension Trust Fund in FY 2017/18 and FY 2018/19.
Specifically, regarding the CIP activity, General Fund reserves decrease by the annual amount of
Council approved appropriated transfers-out to the Town’s General Fund Appropriated Reserve
(GFAR) Capital Projects fund. The GFAR Capital Projects fund is a separate fund that accounts
for the funds until project work is completed, and the funds are expended. This means that
General Fund reserve will decrease for the annual transfers for the capital program regardless
of when funds are eventually expended in the Town’s separate GFAR Capital Projects fund. The
level of actual project expenditures or carry over balances in the Town’s GFAR fund will not
affect the Town’s General Fund reserves. Because of the high level of capital activity and
related transfers in recent years from the General Fund Capital/Special Projects Reserve, the
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COMMENTS AND QUESTIONS FROM COUNCIL MEMBERS (Continued):
estimated June 30, 2020 balance is $2.5 million. The General Fund Capital/Special Projects
Reserve has averaged a balance of approximately $9.1 million in the past five fiscal year.
Page A-8 of the Operating Budget Transmittal Letter indicates that the General Fund
Proposed Budget is only increasing by approximately $400,000. Is this correct?
The Adopted FY 2018/19 Operating Budget included a one-time appropriation of a $3.2 million
payment to the IRS 115 Pension Trust. In comparison, the FY 2019/20 Proposed Budget does
not include such one-time payment. The Proposed Budget reflects all negotiated salary
increases and market adjustments necessary to attract and retain high performing employees.
Please provide the previous drop in Pavement Condition Index (PCI) to demonstrate that the
Town is making progress to improve the overall PCI, moving back towards a previous high of
74 in 2008.
Recent PCI trends show a low of 66 in 2016 and a growth trend to a current 2018 level of 69
and a projected level of 71 to 72 in FY 2019/20 based on current funding levels.
The civic center improvements are on the unfunded list. We had talked about a wayfinding
sign in front and have never gotten one. Can we do that without funding a whole civic center
improvement project?
Wayfinding has been a longstanding concern of many community members. If the Town
Council would like to add this as a capital project, staff would recommend a budget amount of
$75,000. This would fund design and construction of a sign of modest scope. The actual cost
would depend on the design, lighting, etc. The Town Council could provide input on the design
elements as a future project progresses.
BUDGET HEARING AND NEXT STEPS:
At its May 21, 2019 meeting, the Council will have an opportunity to listen to public testimony,
ask questions, and direct changes to the Proposed Operating and/or Capital Improvement
Program Budgets. Any changes to the Proposed Operating and/or Capital Budgets directed by
Council or identified by staff (such as “clean-up” items) will be included for Council
consideration in the resolution formally adopting the Budgets to be considered by Council in
June. In addition, Council will provide direction for the allocation of an estimated $1.9 million
Surplus Property Reserve and the estimated $1.0 million of residual balance available from the
proposed closing of the Vehicle Maintenance and Stores Internal Service Funds.
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COORDINATION:
The preparation of the budget documents involved the participation of all Town Departments.
FISCAL IMPACT:
The fiscal impact is presented in summary form in the Financial Summaries chapter of the
Proposed Operating and Capital Budget for FY 2019/20. The total proposed budget is $67.5
million, an increase of $9.2 million from the FY 2018/19 Adopted Budget.
PUBLIC COMMENTS:
Public comments received to date are contained in Attachment 4.
ENVIRONMENTAL ASSESSMENT:
This is not a project defined under CEQA, and no further action is required.
Attachments:
1. FY 2019/20 Proposed Operating and Capital Budget
2. FY 2019/20 – FY 2023/24 Proposed Capital Improvement Program Budget
3. Town of Los Gatos Donation Opportunities: FY 2019/20 List of Town Needs
4. Public Comments Received Prior to 11 a.m. May 16, 2019