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Government Finance Officers Association
© 2018 Government Finance Officers Association
Building a Better Budget DocumentPresented to Government Finance Officers
Association of Texas
October 26, 2018gfoa.org@GFOA
Links
Budget Awards home page• http://www.gfoa.org/budgetaward
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Instructor
John FishbeinSenior Program Manager Technical Services CenterGovernment Finance Officers Association (GFOA)Phone: 312-578-2268Email: [email protected]
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1 = Information not present, 2= Does not satisfy criterion, 3=Proficient, 4= Outstanding
Policy
Financia
l
Operatio
ns
Communicatio
ns
Criteria Description
Introduction and Overview* C1 Table of contents (mandatory)
P1 Strategic goals & strategiesP2 Short-term organization-wide factors influencing decisions
* P3 Priorities and issues (mandatory)* C2 Budget Overview (mandatory)
Financial Structure, Policy, and Process* O1 Organization chart (mandatory) F1 Fund descriptions and fund structure O2 Department/fund relationship F2 Basis of Budgeting* P4 Financial policies (mandatory) * P5 Budget process (mandatory)
Financial Summaries* F3 Consolidated financial schedule (mandatory)* F4 Three (four) year consolidated and fund financial schedules (mandatory)* F5 Fund balance (mandatory)* F6 Revenues (mandatory)
F7 Long-range financial plans
Grade
Please rate each criterion and each overall category
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4
2
1 = Information not present, 2= Does not satisfy criterion, 3=Proficient, 4= Outstanding
Policy
Financia
l
Operatio
ns
Communicatio
ns
Criteria Description
Please rate each criterion and each overall category
Capital & Debt* F8 Capital expenditures (mandatory) F9 Impact of capital investments on operating budget* F10 Debt (mandatory)
Departmental Information* O3 Position summary schedule (mandatory) * O4 Department descriptions (mandatory)
O5 Unit goals and objectivesO6 Performance measures
Document-wide Criteria C3 Statistical/supplemental section
C4 GlossaryC5 Charts and graphs
C6 Understandability and usability
Overall as a policy document Overall as a financial plan Overall as an operations guide Overall as a communications device
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Introduction and Overview
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Make sure every page in the budget document is sequentially numbered.
#C1: Table of Contents (Mandatory)
The document shall include a table of contents that makes it easier to locate information in the document.
Criteria Location Guide Questions1. Is a comprehensive table of contents provided to help the reader locate information in the document?2. Are all pages in the document numbered or otherwise identified?3. Do the page number references in the budget or electronic table of contents agree with the related page numbers in the budget or electronic submission?
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Hamilton County, TN.
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8
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District of West Vancouver, BC.
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9
Look at GFOA best practice on Establishment of Strategic Plans.
#P1: Strategic Goals and Strategies
The document should include a coherent statement of organization-wide, strategic goals and strategies that address long-term concerns and issues.
Criteria Location Guide Questions
1. Are non-financial policies/goals included?2. Are these policies/goals included together in the Budget Message or in another section that is separate from the departmental sections?3. Are other planning processes discussed?
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10
5
Coachella Valley Water District, CA.
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11
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Rochester Genesee Regional Transportation Authority, NY. 12
6
City of North Palm Beach, FL.
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City of North Palm Beach, FL.
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14City of North Palm Beach, FL. 14
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#P2: Short-Term Organization-Wide Factors Influencing Decisions
The document should describe the entity’s short-term factors that influence the decisions made in the development of the budget for the upcoming year.
Criteria Location Guide Questions1. Are short-term factors addressed?2. Does the document discuss how the short-term factors guided the development of the annual budget?3. Is a summary of service level changes presented?
Factors should include a mix of operational and financial items.
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No Choices (Red) – Items in this category offer the Board no options when it comes to providing services or the amount of funding.
No Program Choice/Funding Choice (Blue) – Programs listed in this category are imposed on the Board, yet the County has the flexibility when it comes to the level of funding necessary to meet the program needs.
Program Choice/No Funding Choice (Purple) – The Board has the option to provide the services in this category.
Program and Funding Choice (Green) – The Board has complete control over both program and funding decisions. This category offers the Board the greatest degree of budgetary flexibility.
Mecklenburg County, NC.$ in millions
Service ChoiceFunding Choice $334
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City of Maple Valley, WA.
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Pinellas County, FL. 18
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Discuss issues and offer solutions.
#P3: Priorities and Issues (Mandatory)
The document shall include a budget message that articulates priorities and issues for the upcoming year. The message should describe significant changes in priorities from the current year and explain the factors that led to those changes. The message may take one of several forms (e.g., transmittal letter, budget summary section).
Criteria Location Guide Questions1. Does the message highlight the principal issues facing the governing body in developing the budget (e.g., policy issues, economic factors, regulatory, and legislative challenges)?2. Does the message describe the action to be taken to address these issues?3. Does the message explain how the priorities for the budget year differ from the priorities of the current year?4. Is the message comprehensive enough to address the entire entity? 19
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Smith County, TX.
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Smith County, TX.
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City of OakbrookTerrace, IL.
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Present the budget overview in a concise manner.
#C2: Budget Overview (Mandatory)
The document should provide an overview of significantbudgetary items and trends. An overview should bepresented within the budget document either in a separatesection (e.g., executive summary) or integrated within thetransmittal letter or as a separate budget-in-brief document.
Criteria Location Guide Questions1.Is an overview contained in the budget message/transmittal letter, executive summary, or in a separate budget-in-brief document?2.Is summary information on significant budgetary items conveyed in an easy to read format?3.Is summary information on budgetary trends provided?
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District of West Vancouver, BC.
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District of West Vancouver, BC.
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City of GrantsPass,OR.
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City of Berkeley, CA.
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Financial Structure, Policy, and Process
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Make sure the organization chart is legible.
#O1: Organization Chart (Mandatory)
The document shall include an organization chart(s) for the entire entity.
Criteria Location Guide Questions1. Is an organization chart provided which shows the entire entity?
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City of Olympia, WA.
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An‘organization chart’ of the government’s funds is useful.
#F1: Fund Descriptions and Fund Structure
The document should include and describe all funds that are subject to appropriation.
Criteria Location Guide Questions1.Is a narrative or graphic overview of the entity’s budgetary fund structure included in the document?2.Does the document indicate which funds are appropriated? (Other funds for which financial plans are prepared also may be included in the document.)3.Does the document include a description of each individual major fund included within the document? 4.If additional or fewer funds are included in the audited financial statements, does the document indicate this fact? 31
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Town of Hillsborough, CA.
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Town of Hillsborough,CA.
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The department/fund relationship can be shown through the use of a matrix.
#O2: Departmental/Fund Relationship
The document should provide narrative, tables, schedules, or matrices to show the relationship between functional units, major funds, and nonmajor funds in the aggregate.
Criteria Location Guide Questions1.Is the relationship between the entity’s functional units, majorfunds, and nonmajor funds in the aggregate explained orillustrated?
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City of Thornton, CO.
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Make sure exceptions between basis of budgeting and basis of accounting are noted.
#F2: Basis of Budgeting
The document shall explain the basis of budgeting for all funds, whether cash, modified accrual, or some other statutory basis.
Criteria Location Guide Questions1. Is the basis of budgeting defined (eg., modified accrual, cash, or accrual) for all funds included in the document? 2. If the basis of budgeting is the same as the basis of accounting used in the entity’s audited financial statements, is that fact clearly stated?3. If the basis of budgeting is not the same as the basis of accounting used in the entity’s audited financial statements, are the differences described?
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City of Pearland,TX.
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City of Pearland, TX.
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Look at GFOA best practice on Adoption of Financial Policies.
#P4: Financial Policies (Mandatory)
The document should include a coherent statement of entity-wide long-term financial policies.
Criteria Location Guide Questions1.Is there a summary of financial policies and goals?2.Do the financial policies include the entity’s definition of a balanced budget?3.Are all financial policies presented in one place?
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Napa Sanitation District, CA.
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Napa Sanitation District, CA.
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New Kent County, VA.
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Include the public in your budget process.
#P5: Budget Process (Mandatory)
The document shall describe the process for preparing, reviewing, and adopting the budget for the coming fiscal year. It also should describe the procedures for amending the budget after adoption.
Criteria Location Guide Questions1.Is a description of the process used to develop, review, and adopt the budget included in the document? 2.Is a budget calendar provided to supplement (not replace) the narrative information on the budget process? 3.Is a discussion of how the budget is amended provided in the budget document available to the public (including the budgetary level of control)? 43
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Gallatin County, MT.
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GallatinCounty, MT.
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GloucesterCounty, VA.
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Financial Summaries
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Break out revenues by type and expenditures by function, organizational unit, or object.
#F3: Consolidated Financial Schedule (Mandatory) The document shall present a summary of major revenues and expenditures, as well as other financing sources and uses, to provide an overview of the total resources budgeted by the organization.
Criteria Location Guide Questions1.Does the document include an overview of revenues and other financing sources and expenditures and other financing uses of all appropriated funds? 2.Are revenues and other financing sources and expenditures and other financing uses presented either (1) together in a single schedule OR (2) in separate but adjacent/sequential schedules OR (3) in a matrix? 3.Are revenues presented by major type in this schedule (e.g., property taxes, intergovernmental, sales taxes, fees and charges)? 4.Are expenditures presented by function, organizational unit, or object in this schedule? (For funds other than the main operating fund of the entity, a presentation by fund normally would satisfy this requirement.) 48
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64City of Fremont, CA.
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50City of Fremont, CA.
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Break out revenues by type/expenditures by function, organizational unit, or object for total funds and individual funds.
#F4: Three/(Four) Year Consolidated and Fund Financial Schedules (Mandatory)The document must include summaries of revenues and other financing sources, and of expenditures and other financing uses for the prior year actual, the current year budget and/or estimated current year actual, and the proposed budget year.
Criteria Location Guide Questions1.For annual budgets, are revenues and other financing sources and expenditures and other financing uses for the prior year, the current year, and the budget year presented together on the same schedule(s) or on schedules presented on adjacent/sequential pages? 2.Is this information presented for the appropriated funds in total?3.Is this information also presented for each major fund and for other (i.e. nonmajor) funds in the aggregate? 4.For biennial budgets, are revenues and other financing sources and expenditures and other financing uses for the prior year, the current year, and both budget years presented together on the same schedule(s) or on separate schedules presented on adjacent/sequential pages? 51
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Washtenaw County, MI.
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City of Corvallis, OR.
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#F5: Fund Balance (Mandatory) The document shall include projected changes in fund balances, as defined by the entity in the document, for appropriated governmental funds included in the budget presentation (fund equity if no governmental funds are included in the document).Criteria Location Guide Questions1.Does the document include the entity’s definition of “fund balance” (or of “fund equity” if no governmental funds are included in the entity - frequently the noncapital portion of net assets)? 2.Is the fund balance (equity) information presented for the budget year?3.Is there a schedule showing (1) beginning fund balances, (2) increases and decreases in total fund balances (reported separately), and (3) ending fund balances for appropriated governmental funds?4.Is this information presented at a minimum for each major fund and for nonmajor governmental funds in the aggregate? 5.If fund balances of any major fund or the nonmajor funds in the aggregate are anticipated to increase or decline by more than 10%, does the document include a discussion of the causes and/or consequences of these changes in fund balance? 6.If an entity has no governmental funds, is the change in the fund equity presented for (1) the entity as a whole, (2) the main operating fund, and (3) each significant fund? 7.For biennial budgets is the change in fund equity presented separately for both years of the biennium?Discuss fund balance changes over 10%.
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Accomack County, VA.
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Trend graphs can be useful in revenue analysis.
#F6: Revenues (Mandatory)
The document shall describe major revenue sources, explain the underlying assumptions for the revenue estimates, and discuss significant revenue trends.
Criteria Location Guide Questions1.Are individual revenue sources described? 2.Do the revenue sources that are described represent at least 75 percent of the total revenues of all appropriated funds?3.Are the methods used to estimate revenues for the budget year described (e.g., trend analysis, estimates from another government or consulting firm)?4.If revenues are projected based on trend information, are both those trends and the underlying assumptions adequately described? 56
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Chester County, PA.
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Total = $432 million
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110010
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City of Manhattan, KS..
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Include long-range financial plans that extend beyond the budget year.
#F7: Long-Range Financial Plans
The document should explain long-range financial plans and its affect upon the budget and the budget process.
Criteria Location Guide Questions1.Are long-range financial plans identified? 2.Do your long-range financial plans extend out at least two years beyond the budget year?3.Is there a concise explanation or illustration of the linkage between the entity’s long-range financial plans and strategic goals?
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St. Johns County, FL.
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City of Cottonwood, AZ.
CONCLUSION
This five-year analysis of the General Fund demonstrates that operating revenues will not keep up with operating expenditures for the next five years. This reflects the City’s inability to substantially increase the current revenue streams via rate increases or through diversifying the current revenues with additional fees or charges for services. The present economic situation will also stifle future revenue generation.
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Capital & Debt
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Include discussion on major capital projects.
#F8: Capital Expenditures (Mandatory) The document should include budgeted capital expenditures, whether authorized in the operating budget or in a separate capital budget.Criteria Location Guide Questions1.Does the document define “capital expenditures”?2.Does the document indicate the total dollar amount of capital expenditures for the budget year (both budget years for biennial budgets)?3.Are significant nonrecurring capital expenditures described along with dollar amounts? (Information in a separate CIP document does not satisfy this criterion.)4.If the entity has no significant nonrecurring capital expenditures, is that fact clearly stated in the document?
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City of Hollywood, FL.
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City of Woodstock, Illinois 65
Town of Windsor, CO.
All improvements must by prioritized and ranked based on the following categories:
Priority I: IMPERATIVE (Must-Do) – Projects that cannot reasonably be postponed in order to avoid harmful or otherwise undesirable consequences.
A. Corrects a condition dangerous to public health or safety B. Satisfies a legal obligation C. Alleviates an emergency service disruption or deficiency D. Prevents irreparable damage to a valuable public facility.
Priority II: ESSENTIAL (Should-Do) – Projects that address clearly demonstrated needs or objectives.
A. Rehabilitates or replaces an obsolete public facility or attachment thereto B. Stimulates economic growth and private capital investment C. Reduces future operating and maintenance costs D. Leverages available state or federal funding.
Priority III: IMPORTANT (Could-Do) – Projects that benefit the community but may be delayed without detrimental effects to basic services.
A. Provides a new or expanded level of service B. Promotes intergovernmental cooperation C. Reduces energy consumption D. Enhances cultural or natural resources.
Priority IV: DESIRABLE (Other Year) – Desirable projects that are not included within five-year program because of funding limitations.
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Significant Non-Routine Capital ExpendituresBotanica ExpansionCouncil District: All
Type: New ConstructionCategory: ParkStart & Complete Date: 2012-2013Cost (total): $2,650,000Operational Costs (additional): $50,000Operational Staff (additional): Minimal
Botanica continues to provide a premium attraction on the river that supports the Core Area and Neighborhood goal. The development of the gardens and infrastructure will strengthen the economic viability of the Botanica organization and support the City of Wichita in providing cultural arts programs for citizens and visitors.
The first phase of the Botanica Expansion Project included the development of a children’s garden comprised of approximately one acre located west of the current complex. New infrastructure for utilities and a road linking North Amidon to Sim Park Drive and Museum Boulevard were included. Additional improvements include more meeting and classroom space. Additional operating costs are estimated at $50,000 for maintenance and utilities.
City of Wichita, KS. 67
Quantify and discuss operating impacts.
#F9: Impact of Capital Investments on Operating Budget
The document should describe if and to what extent significant nonrecurring capital expenditures will affect the entity’s current and future operating budget and the services that the entity provides.
Criteria Location Guide Questions1.Are anticipated operating costs associated with significant nonrecurring capital expenditures described and quantified (e.g.,additional personnel costs, additional maintenance costs, or additional utility costs)? (Information in a separate CIP document does not satisfy this criterion.)2.Are anticipated savings or revenues expected to result from significant nonrecurring capital expenditures described and quantified (e.g., reduced utility costs, lower maintenance costs)? 68
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Little Blue Valley SewerDistrict,MO.
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Debt to maturity schedules breaking out principal and interest can be useful.
#F10: Debt (Mandatory) The document shall include financial data on current debt obligations, describe the relationship between current debt levels and legal debt limits, and explain the effects of existing debt levels on current operations.Criteria Location Guide Questions1.Are debt limits described? 2.Are the amounts of debt limits expressed in terms of total dollars, millage rates or percentages of assessed value? 3.Are the amounts of debt subject to debt limits identified in the same terms used to describe the debt limits themselves? 4.Is the amount of principal and interest payments for the budget year (two years for biennial budgets) shown for each major fund (for appropriated funds), for each significant unappropriated fund and for other funds in the aggregate?
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New Kent County, VA.
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St. Louis County, MO.
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Position counts are frequently presented showing individual department totals summing to a grand total.
#O3: Position Summary Schedule (Mandatory)
A schedule or summary table of personnel or position counts for prior, current and budgeted years shall be provided.
Criteria Location Guide Questions1.Is a summary table of position counts provided for the entire entity?2.Does the table include the prior year, the current year, and budget year position counts? 3.Are changes in staffing levels for the budget year explained?4.If there are no changes in staffing levels, is that item noted?
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City of Rye, NY.
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Whitfield County, GA.
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Whitfield County, GA.
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Discuss major financial or program changes occurring in the different departments.
#O4: Department Descriptions (Mandatory)
The document shall describe activities, services or functions carried out by organizational units.
Criteria Location Guide Questions1.Does the document clearly present the organizational units (e.g.,divisions, departments, offices, agencies, or programs)?2.Does the document provide descriptions of each organizational unit?
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City of Olympia, WA.
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City of Olympia, WA.
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Consider a matrix linking department goals to overall entity goals.
#O5: Unit Goals and Objectives
The document should include clearly stated goals and objectives of organizational units (e.g., departments, divisions, offices or programs).
Criteria Location Guide Questions1.Are unit goals and objectives identified?2.Are unit goals clearly linked to the overall goals of the entity?3.Are objectives quantifiable?4.Are timeframes on objectives noted?
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City of Coppell, TX.
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82City of Lawrence, KS.
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Include efficiency and effectiveness measures.
#O6: Performance Measures
The document should provide objective measures of progress toward accomplishing the government’s mission as well as goals and objectives for specific units and programs.
Criteria Location Guide Questions1.Are performance data for individual departments included in the document?2.Are performance data directly related to the stated goals and objectives of the unit? 3.Do performance measures focus on results and accomplishments (e.g., output measures, efficiency and effectiveness measures) rather than inputs (e.g., dollars spent)?
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City of Temecula, California
CoreValue
Five Year LongTerm Goal
Performance Measures FY2013 14Actuals
FY2014 15Actuals
FY2015 16Target
ASafe
andPrep
ared
Commun
ity
Minimize The ImpactTo Life, Property, and
TheEnvironment FromNatural Hazards AndEmergency Situations
Percentage of CSO’strained in the
operation and set upof the MobileCommand Post
60% 75% 80%
Remain Within TheFederal Ranking OfThe Top 25 Safest
Cities
Percentage of patrolofficers maintaining24 hour perishable
skills training
95% 100% 100%
Police Division/Program Patrol ServicesPERFORMANCE MEASURES FOR FISCAL YEAR 2015-2016
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City of Maple Valley, Washington
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Document-wide Criteria
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Do not just copy the CAFR statistical/supplemental section into the budget document.
#C3: Statistical/Supplemental SectionThe document should include statistical and supplemental data that describe the organization, its community, and population. It should also furnish other pertinent background information related to the services provided.
Criteria Location Guide Questions1.Is statistical information that defines the community included in the document (e.g., population, composition of population, land area, and average household income)?2.Is supplemental information on the local economy included in the document (e.g., major industries, top taxpayers, employment levels, and comparisons to other local communities)?3.Is other pertinent information on the community (e.g., local history, location, public safety, education, culture, recreation, transportation, healthcare, utilities, and governmental structure)included in the document?
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City of Markham, ON.
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89City of El Paso, TX.
Make sure acronyms and non-financial terms are also included.
#C4: Glossary
A glossary should be included for any terminology (including abbreviations and acronyms) that is not readily understandable to a reasonably informed lay reader.
Criteria Location Guide Questions1.Is a glossary that defines technical terms related to finance and accounting, as well as non-financial terms related to the entity, included in the document? 2.Are acronyms or abbreviations used in the document defined in the glossary?3.Is the glossary written in non-technical language?
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LethbridgeCounty, AB.
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Minneapolis-St.PaulMetropolitanAirportsCommission, MN.
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Including captions with graphs can be helpful.
#C5: Charts and Graphs
Charts and graphs should be used, where appropriate, to highlight financial and statistical information. Narrative interpretation should be provided when the messages conveyed by the graphs are not self-evident.
Criteria Location Guide Questions1. Are charts and graphs used in the document to convey essential information (e.g., key policies, trends, choices and impacts)?2. Do the graphics supplement the information contained in the narratives?
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Palm Beach County Clerk of the Circuit Court, FL.
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CoachellaValley Water District, CA.
95
Make sure the document is easy to read.
#C6: Understandability and Usability
The document should be produced and formatted in such a way as to enhance its understanding by the average reader. It should be attractive, consistent, and oriented to the reader's needs.
Criteria Location Guide Questions1. Is page formatting consistent? 2. Are the main sections of the document easily identifiable?3. Is the level of detail appropriate? 4. Are text, tables, and graphs legible?5. Are budget numbers in the document accurate and consistent throughout the document?
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96
48
Culpepper County, VA.
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97
Town of QueenCreek, AZ.
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