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Council Briefing
October 18, 2019
Multi-year Budget (2020 to 2023)
1
• Multi-year Budget Context • Multi-year Budget Process • EPC Recommended Operating and Capital Targets to Balance
Multi-year Budget (2020 to 2023) Agenda
2
Multi-year Budget (2020 to 2023) Multi-year Budget Context
3
4
The 1990s: A Challenging Decade
Winnipeg’s current fiscal policies were custom tailored to the situation it faced in the 1990s
• Population Decline
• Negative experiences (Flood of 1997, Winnipeg Jets leaving)
• Low Revenue Growth
• High Dependence on property taxes
• Among the highest property taxes in Canada
5
The 1990s: A Challenging Decade
As a result, the City hoped to stop, or manage, the decline with:
• Years of property tax freezes
• Restricted Capital Investment
• Expenditure Reductions
• Reduced FTE’s
• Reduced Debt
• Withdrawals from reserves
6
The 2010s: A Decade of Growth
Winnipeg’s economic challenges have reversed since the 1990s. One of main challenges now is meeting the demands of a growing city.
• Fastest population growth since the 1950’s
• Second fastest Real GDP in 2018 out of major cities
• Lowest municipal property tax of any major Canadian city
• Low reliance on property tax
• Low debt payments
7
The 2010s: A Decade of Growth
As a result, we are now experiencing growing pains that we have to address to keep our population moving forward.
• There is a structural imbalance between revenues and the costs generated by growth (including new infrastructure)
• Failure to meet this challenge could impede on future growth and the desirability of Winnipeg as a destination for prospective residents and businesses
8
Present: New Solutions are Needed
The solutions the City adopted in the 1990s are no longer working
• Low property tax revenue has led to deferred capital investment and constrained service delivery
• Dedicated property tax increases (2.33%) has led to an improvement in street renewal and transit infrastructure
• Options for closing the gap between operating revenues and expenditures with funding from reduced debt payments and drawing from reserves is limited and unreliable going forward
9
Present: New Solutions are Needed
The City has hard fiscal choices to make.
• Deferral of capital investment means the infrastructure gap will grow, and key community needs won’t be met – a civic competitiveness issue
• Continued operating expenditure constraints, and FTE reductions mean making hard choices about service priorities and cuts
How does Winnipeg’s current growth compare to our past?
10
Is Winnipeg Growing?
1990-1999 +14k
2000-2009 +33k
2010-2018 +90k
2010’s
Over the past 9 years, Winnipeg has grown
by over 90,000 people, or roughly 27 people
per day.
In the 2000’s, Winnipeg grew by 33,000 people, equivalent to 9 people
per day
2000’s
In the 1990’s, Winnipeg grew by 14,000 people, equivalent to 4 people
per day
1990’s
Yes, the fastest it has in recent history.
11
Source: Statistics Canada, Conference Board of Canada, Manitoba Bureau of Statistics. Please note that prior to 1986, population values outside of census years are linearly interpolated and census undercount values are assumed to be 1.5% of the census population. 12
City of Winnipeg’s Population: 1871 to 2018
City of Winnipeg’s Population: 1980 to 2018
Source: Statistics Canada, Conference Board of Canada, Manitoba Bureau of Statistics. Please note that prior to 1986, population values outside of census years are linearly interpolated and census undercount values are assumed to be 1.5% of the census population.
Population is growing at 3 times the rate this decade than in the previous decade
13
Population Growth Across Canada
Source: Statistics Canada, 2011 Census and 2016 Census, Conference Board of Canada Spring 2019 Metropolitan Outlook
14.8%
13.0%
11.4% 10.9%
6.3% 5.8%
4.6% 4.5% 3.3% 3.3% 3.3% 3.0%
0%
2%
4%
6%
8%
10%
12%
14%
16%
Total Population Growth
2011 to 2016 (CY)
10.6% 10.3%
10.2%
10.0% 9.3%
7.3% 7.3% 6.8% 6.5% 5.6%
4.5% 3.9%
0%
2%
4%
6%
8%
10%
12%
14%
16%
Total Population Growth Projections
2018 to 2023 (CMA)
Winnipeg was the fastest growing non-energy based city in Canada
14
What was our financial situation like in the 1990s?
15
Financial History – The 1990’s
City of Winnipeg Research Branch, December 1993
Real Estate News, October 1994
Winnipeg 2000 Economic Development Corporation, Property Tax Review, February 1997
Real Estate News, March 1997 City of Winnipeg 1999 Budget, Appendix 10
In the mid-1990’s, residents and businesses were becoming increasingly concerned about 3 things within the City:
1. Winnipeg had high property taxes
2. Winnipeg had a higher proportion of it’s revenue coming from property taxes
3. Winnipeg had high debt servicing costs
16
"Our taxes are among the highest in the country - moving out of the city to avoid those taxes has been a trend for years." - Winnipeg Sun, January 1997
City of Winnipeg Committee on Tax Reform, “Rethinking Taxation: Making Winnipeg Competitive”, June 1998
Third highest average municipal property tax in 1998
Source: City of Edmonton Property Tax Survey Data, 1985 to 2000
$2,600
$1,759
$1,350 $1,281
$1,017 $1,007 $910 $906
$817 $722
$0
$500
$1,000
$1,500
$2,000
$2,500
$3,000
Montreal Toronto Winnipeg Halifax Regina Victoria SaskatoonVancouver Edmonton Calgary
17
Sources of Revenue - Dependence on Property Tax - 1998
Source: City of Winnipeg Annual Financial 1998 Report
40%
15%
11% 10%
6% 6% 5% 5% 4%
0%
5%
10%
15%
20%
25%
30%
35%
40%
45%
PropertyTaxes
Water &Sewer User
Fees
OperatingGrants
User Fees& Charges
BusinessTax
Interest,Land Sales
& Other
TransitFares
CapitalGrants
Other Taxes
18
Proportion of Budget toward Debt and Finance - 1998
Source: City of Winnipeg 1998 Tax-supported Operating Budget
All Other Expenditures
$546,999,816
81%
Total Debt and Finance
Charges
$127,800,990 19%
19
How did the City respond?
20
Reduced mill rates
Source: City of Winnipeg Assessment and Taxation Department 21
Stopped taking on debt, reduced debt payments
Source: City of Winnipeg Department of Corporate Finance
$21
$4
$1
$8 $7
$4 $5 $6 $7
$1
$8
$3
$35
$5
$12
$2 $1
$0
$5
$10
$15
$20
$25
$30
$35
$40
Tax
-su
pp
ort
ed O
per
atin
g B
ud
get
Fun
ds
Mill
ion
s
Tax-Supported Funds Freed up from Expired Debt Payments
Total operating funds that have been reallocated from debt payments since 1995: $130 million
22
Reduced Cash to Capital
Source: City of Winnipeg Department of Corporate Finance
$0
$10
$20
$30
$40
$50
$60
$70
$80
$90
$100
20002001200220032004200520062007200820092010201120122013201420152016201720182019
Tax
-Su
pp
ort
ed O
per
atin
g B
ud
get
Fun
ds
Mill
ion
s
Adopted Cash to Capital Cut Cash to Capital
23
Reduced expenditures and reserve withdrawals
Source: City of Winnipeg Department of Corporate Finance
$60
$105
$76 $83 $83
$93 $95
$107 $99
$105
$84
$75 $76
$0
$20
$40
$60
$80
$100
$120
2007 2008 2009 2010 2011 2012 2013 2014 2015 2016 2017 2018 2019
Tax
-Su
pp
ort
ed O
per
atin
g B
ud
get
Fun
ds
Mill
ion
s
Expenditure reductions and transfers from other funds and reserves vary in size and availability each year. They’ve averaged $88 million over the past 5 years.
24
Started a Utility Dividend in 2011
Source: City of Winnipeg Department of Corporate Finance
$17 $18 $19 $20
$31 $32
$36 $38
$34
$0
$5
$10
$15
$20
$25
$30
$35
$40
$45
2011 2012 2013 2014 2015 2016 2017 2018 2019
Tax
-Su
pp
ort
ed O
per
atin
g B
ud
get
Fun
ds
Mill
ion
s Utility Dividends used to help balance the tax-supported operating budget have averaged $34 million in the last 5 years
25
Used additional revenue for capital projects
Source: City of Winnipeg Adopted Tax-Supported Operating Budget Documents, 1985 to 2018
$997
$454
$768
$1,125
$0
$200
$400
$600
$800
$1,000
$1,200
1985 1987 1989 1991 1993 1995 1997 1999 2001 2003 2005 2007 2009 2011 2013 2015 2017 2019
Rev
enu
e M
illio
ns
Compared to 2008, revenues are up $357 million. 36% of this increase, or $128 million in annual revenue, has been dedicated to public works, street renewal, and BRT.
26
Of the $431 million increase in the tax supported operating budget since 2004, $300 million, or 70% is due to Salary and Benefits.
Source: City of Winnipeg Adopted Tax-Supported Operating Budget Documents, 1985 to 2019
$454
$694
$1,125
$0
$200
$400
$600
$800
$1,000
$1,200
1985 1987 1989 1991 1993 1995 1997 1999 2001 2003 2005 2007 2009 2011 2013 2015 2017 2019
Rev
enu
e M
illio
ns
27
This is due, in part, to an increase in average salary and benefit expenditure per FTE by area
Source: City of Winnipeg Adopted Tax-Supported Operating Budget Documents, 2004 to 2019 28
$71,825
$129,095
$50,077
$78,313
$0
$20,000
$40,000
$60,000
$80,000
$100,000
$120,000
$140,000
2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014 2015 2016 2017 2018 2019
Average per FTE by Area
Emergency Services All Other DepartmentsCAGR: 4.0%
CAGR: 3.0%
and also a shift in the quantity of FTEs by area.
Source: City of Winnipeg Adopted Tax-Supported Operating Budget Documents, 1998 to 2018 29
2,717
3,319
2,974
2,734
1,000
1,500
2,000
2,500
3,000
3,500
2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014 2015 2016 2017 2018
Full
Tim
e E
qu
ival
ent
(FT
E) E
mp
loye
es
Emergency Services FTE All Other Departments FTE
Finally, of the $300 million increase in salary and benefits expenditure, $233 million (78%) was allocated to Emergency Services
Source: City of Winnipeg Adopted Tax-Supported Operating Budget Documents, 2004 to 2019 30
$0
$50
$100
$150
$200
$250
$300
$350
2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014 2015 2016 2017 2018 2019
Mill
ion
s
Increase in Tax Supported Expenditures on Salary and Benefit by Area, Relative to 2004
Emergency Services All Other Departments
What was the result of these changes and how do we compare to other cities?
31
Second largest mill rate reduction locally
Source: City of Winnipeg Assessment and Taxation Department, various Rural Municipality’s 2018 Financial Plans.
Between 2000 and 2018, Winnipeg reduced its mill rate by 60%. Only Headingley reduced theirs more, by 65%.
32
$3,943 $3,805
$3,006 $2,805 $2,743 $2,699 $2,586
$2,256 $2,081 $2,000 $1,967
$1,774
$0
$500
$1,000
$1,500
$2,000
$2,500
$3,000
$3,500
$4,000
$4,500
Lowest Average Municipal Property Tax - 2019
Source: Cities Assessment and Taxation Websites and various other media sources
In 2019, Winnipeg had the lowest average municipal property taxes out of 12 major Canadian cities
33
$3,943
$3,006 $2,805 $2,743 $2,699 $2,586 $2,256 $2,081 $2,000 $1,967 $1,774
$273
$0
$500
$1,000
$1,500
$2,000
$2,500
$3,000
$3,500
$4,000
$4,500
Ottawa Toronto Victoria Vancouver Québec Edmonton Regina Saskatoon Calgary Halifax Winnipeg
Lowest Average Municipal Property Tax - 2019
Source: Cities Assessment and Taxation Websites and various other media sources
$273
34
Street Renewal Frontage Fee
Provincial charges, District-specific taxes,
HOA Improvement Charges
Local Improvements and Special Taxes
Capital District Charges, Capital Hospital Charges,
Charge for BC Assessment, Municipal Finance Authority
City Building Fund
Low proportion of property tax non-residentially
Source: City of Calgary Property Tax Survey, 2017 * Note: Revenue received from Business taxes in Calgary and Winnipeg are included in the total amount of taxes received from non-residential properties.
57%
51% 50%
44%
36% 35% 35%
26%
0%
10%
20%
30%
40%
50%
60%
Calgary Edmonton Vancouver Halifax Toronto Winnipeg Regina Saskatoon
Winnipeg has among the lowest proportion of its tax revenue coming from non-residential properties.
* *
35
Less reliant on tax, more reliant on transfers
Source: City of Winnipeg 1998 and 2016 Annual Financial Reports
40%
15%
11% 10%
6% 6% 5% 5% 4%
33%
17%
11% 13%
3% 4% 5%
9%
5%
0%
5%
10%
15%
20%
25%
30%
35%
40%
45%
PropertyTaxes
Water &Sewer User
Fees
OperatingGrants
User Fees& Charges
BusinessTax
Interest,Land Sales
& Other
TransitFares
CapitalGrants
Other Taxes
1998 2017
More reliant on capital grants from other levels of government as well as user fees and charges.
Less reliant on property tax revenue and Business Tax
36
Lowered debt and finance charges
Source: City of Winnipeg Tax-Supported Operating Budgets, 1994 to 2019
$124
$35
$0
$20
$40
$60
$80
$100
$120
$140
$160
To
tal T
ax-S
up
po
rted
Deb
t an
d F
inan
ce
Ch
arge
s
Mill
ion
s
Total Debt and Finance Charges reduced from $124 million to $35 million of the Tax-Supported operating budget
37
Net Tax Supported Debt is Increasing
Source: City of Winnipeg Treasury Department 38
-
50
100
150
200
250
300
350
400
450
Net
Exi
stin
g T
ax S
up
po
rted
Deb
t
Mill
ion
s
Increase in 2016 due to Police Headquarters Financing
Lowest expenditures per capita
Source: Cities’ 2017 Tax-Supported Operating Budgets and Annual Reports
$1,937 $1,952 $1,999
$1,585 $1,557 $1,829
$1,573 $1,492 $1,540 $1,348
$470 $403 $343 $627
$488 $164 $273
$217 $152 $260
$0
$500
$1,000
$1,500
$2,000
$2,500
$3,000
Vancouver Edmonton Calgary Toronto Ottawa Regina Halifax Hamilton Saskatoon Winnipeg
Expenditure Per Capita Transit Expenditure Per Capita
39
Low capital investment per capita
Source: 2012 to 2017 Cities Annual Financial Reports
$1,657
$1,540
$1,275
$1,093
$959
$722 $684
$404 $330
$0
$200
$400
$600
$800
$1,000
$1,200
$1,400
$1,600
$1,800
Saskatoon Edmonton Toronto Ottawa Calgary Winnipeg Hamilton Montreal Halifax
Average: $963 per capita
40
Low revenue per capita
Source: Cities’ 2017 Tax-Supported Operating Budgets, Utility Budgets, and Annual Reports * Note: The City of Edmonton figures for water and sewer includes land drainage only. This does not include water and sewer revenue collected by the EPCOR utility.
$3,398 $2,993
$2,440 $2,528
$1,836
$194 $546
$537 $566
$397
$0
$500
$1,000
$1,500
$2,000
$2,500
$3,000
$3,500
$4,000
Edmonton Calgary Saskatoon Regina Winnipeg
Tax Supported Revenue per Capita Water and Sewer Revenue per Capita
*
41
Past approaches are no longer sustainable to meet the needs of a growing City.
42
The structural fiscal deficit: 2008-2028
Source: City of Winnipeg Economic Research Office Budget Model
$500
$700
$900
$1,100
$1,300
$1,500
$1,700
Adopted Budget Projected Expenses Projected Revenues
$241 million deficit
projected by 2028
This gap would not exist in a multi-year budget. In the short term, future years would also need to be balanced, not just the current one
43
We can no longer rely on reduced debt
Source: City of Winnipeg Department of Corporate Finance
$0
$5
$10
$15
$20
$25
$30
$35
$401
99
4
199
5
199
6
199
7
199
8
199
9
200
0
200
1
200
2
200
3
200
4
200
5
200
6
200
7
200
8
200
9
201
0
201
1
201
2
201
3
201
4
201
5
201
6
201
7
201
8
201
9
202
0f
202
1f
202
2f
202
3f
202
4f
202
5f
202
6f
202
7f
202
8f
Tax
-su
pp
ort
ed O
per
atin
g B
ud
get
Fun
ds
Mill
ion
s
Tax-Supported Funds Freed up from Expired Debt Payments
Debt payments are forecasted to increase in the near-term then fall
slightly, leaving little-to-no additional funds to allocate to
operations
44
We can no longer rely on cutting cash to capital
Source: City of Winnipeg Department of Corporate Finance
$0
$10
$20
$30
$40
$50
$60
$70
$80
$90
$100
2000 2002 2004 2006 2008 2010 2012 2014 2016 2018 2020 2022 2024 2026 2028
Tax
-Su
pp
ort
ed O
per
atin
g B
ud
get
Fun
ds
Mill
ion
s
Adopted Cash to Capital Cut Cash to CapitalUnder the current projections, all
cash to capital would need to be cut to get us closer to a balanced budget
45
Expenditure reductions and transfers from reserves are unreliable
Source: City of Winnipeg Department of Corporate Finance
$0
$20
$40
$60
$80
$100
$120
Tax
-Su
pp
ort
ed O
per
atin
g B
ud
get
Fun
ds
Mill
ion
s
Expenditure reductions and transfers from other funds and reserves vary in size and availability each year.
Funds available in reserves are hard to predict and not necessarily sustainable as we use them up
46
Utility dividends face growth pressure
Source: City of Winnipeg Department of Corporate Finance
0
5
10
15
20
25
30
35
40
45
50
2011 2012 2013 2014 2015 2016 2017 2018 2019 2020f 2021f 2022f 2023f 2024f 2025f 2026f 2027f 2028f
Tax
-Su
pp
ort
ed O
per
atin
g B
ud
get
Fun
ds
Mill
ion
s
Utility dividends may be increasing but there is pressure to reduce them
(Note: dotted line current assumes 11% dividend on projected WWD sales as in the 2019 rate report)
47
But even with these measures, we still have a gap – and this does not include unfunded capital. The challenge is structural.
Source: City of Winnipeg Department of Corporate Finance, Economic Research Office Budget Model
$0
$50
$100
$150
$200
$250
$300
$350
$400
$450
Fun
ds
use
d t
o B
alan
ce t
he
Op
erat
ing
Bu
dge
t M
illio
ns
Historical
202
0f
202
1f
202
2f
202
3f
202
4f
202
5f
202
6f
202
7f
202
8f
Forecast Forecasted Tax-Supported Operating Budget Deficit
48
49
The Structural Deficit
Structural Deficit: A permanent deficit that results from an underlying imbalance in government revenues and expenditures.
City 2020 Budgeted Deficit Submissions:
• 2020: $89.6 million
• 2021: $119.9 million
• 2022: $158.6 million
• 2023: $174.9 million
50
Conclusion:
• The 1990’s were a challenging decade: Low population growth, negative shocks, high property tax and debt;
• The City hoped to stop the decline with tax and operating/capital expenditure deferrals and reductions;
• Currently, we are facing an inverse situation: exceptional population growth and the lowest property tax and spending per capita;
• The context has changed; the solutions used in the past are no longer reliable
Multi-year Budget (2020 to 2023) Multi-year Budget Process
51
Introducing a four year balanced budget process will help the City with long-term, sustainable planning. This multi-year balanced budget aims to: • control expenses, • invest in priority services, • drive efficiencies, and • achieve sustainability and greater certainty for taxpayers,
stakeholders, and the Federal and Provincial governments. Citizen needs and expectations are evolving. This multi-year balanced budget process provides an opportunity to develop a transformative budget that creates a sustainable financial plan to meet the dynamic needs of a growing city.
52
53
Multi-year Budget Process
• October 18 – EPC setting of multi- year budget parameters including expenditure targets
• November 12 to December 9 – SPCs, EPC, Police Board meetings
• November 12 to November 20 – Multi-year Budget presentations
• November 22 to November 27 – Multi-year Budget delegations
• November 28 to December 9 – Multi-year Budget recommendations
• January 2020 – BWG / EPC deliberate on budget recommendations from SPCs
• February 2020
• EPC tables preliminary multi- year budget
• SPC and Board preliminary budget review meetings
• March 2020 – Council approval of multi-year budget
• Annual review of future budgets
Multi-year Budget (2020 to 2023) EPC Recommended Operating and Capital Targets to Balance
54
55
Key Assumptions
These proposed recommended targets present a balanced tax-supported operating budget from 2020 to 2023
1. Property Tax Increases: 2.33% annually (road renewal and BRT)
2. Fees and Charges: Inflationary increases annually
3. Natural Assessment Base Growth: 1.2% annually
4. Efficiencies/Vacancy Management: $17 Million annually
5. Additional Transfers/Savings: $32.5 million in 2020 growing to $40 million by 2023
6. Provincial Operating Grants: Flat at $149.7 million annually (2016 level)
7. Utility dividend rate: 11% of Water and Sewer Sales
8. Remaining Tax Supported Debt Room: $150 million in total
EPC Recommended Target To 4-Year Balance
56
Services Annual Budget Growth Rate
Police, Fire, Transit, Water & Waste 2.0%
Public Works 1.5%
Community Services 0.5%
Property, Planning, and Development, SOAs, and Internal Services (Corporate, Audit, Innovation, Assessment & Taxation)
0.0%
Department Operating Budget Growth Rates
Capital Financing: reduced to $20 million annually Capital Financing Source Annual Amount
Cash to Capital $20M
Debt Financing (incremental to capital budget forecast) $0
Information Provided to Councillors to assist with budget process: • OurWinnipeg • Community Trends Report (2016 – 2020) • Adopted Capital Budgets (2016-2019) • Adopted Operating Budgets (2016-2019) • Annual Reports (2016-2018) • Detailed Financial Statements (2016-2018) • State of the Infrastructure Report • City Asset Management Plan • Open Budget (Open Capital Projects) • Unfunded Capital Projects • Legislated & Non-Legislated Services List • PeopleSoft General Ledger Balances (training to be provided)
57
510 Main Street | Winnipeg | Manitoba | Canada | R3B 1B9 | winnipeg.ca