HomeMy WebLinkAbout4/24/2018 - Adopted Board RecordsAT A REGULAR MEETING OF THE BOARD OF SUPERVISORS OF ROANOKE
COUNTY, VIRGINIA, HELD AT THE ROANOKE COUNTY ADMINISTRATION
CENTER ON TUESDAY, APRIL 24, 2018
RESOLUTION 042418-1 ADOPTING A COMPREHENSIVE FINANCIAL
POLICY
WHEREAS, one of the measures of a fiscally, well-managed locality is the
adoption of formal financial policies; and
WHEREAS, these policies should be reviewed and amended periodically; and
WHEREAS, the County previously adopted financial policies and now wishes to
amend, restate and combine all financial policies and agreements into one
comprehensive financial policy.
NOW, THEREFORE, BE IT RESOLVED, by the Board of Supervisors of
Roanoke County, Virginia, as follows:
1. That Resolutions 122104-2 and 061411-6.f adopting a General Fund
Unappropriated Balance Policy are rescinded; and
2. That Resolution 122104-5 adopting a policy for Use of General Fund
Revenues in Excess of Budget is rescinded; and
3. That Resolutions 122104-4 and 111213-12.e adopting a policy for Use of
Unexpended appropriations at the end of the fiscal year are rescinded; and
4. That Resolutions 122104-3 and 111213-12.f adopting a policy on the
establishment of Capital Reserves are rescinded; and
5. That Resolution 120704-2 adopting a Debt Policy is rescinded, and
Page 1 of 2
6. That the Memorandum of Understanding between Roanoke County School
Board and County Board of Supervisors regarding the Revenue Sharing
Formula approved February 25, 2014, is rescinded; and
7. That Ordinances 111610-3 and 052510-7 adopting a policy for the use of
appropriations from the School Board year-end balance are rescinded, and
8. That this Comprehensive Financial Policy is in effect beginning July 1, 2018,
and subsequent fiscal years unless otherwise amended by the Board of
Supervisors.
On motion of Supervisor McNamara to adopt the resolution to approve the
attached policy, seconded by Supervisor Assaid, the motion was approved by the
following recorded vote:
AYES: Supervisors Assaid, North, McNamara, Peters, Hooker
NAYS: None
TESTE:
Deborah C. Jacks
Chief Deputy Cler the Board
cc: Rebecca Owens, Director of Finance
Christopher Bever, Director of Management and Budget
F. Kevin Hutchin, Treasurer
Nancy Horn, Commissioner of the Revenue
Page 2 of 2
of �oAAfo COUNTY OF ROANOKE Policy Number PAGE 1 OF 16
z Roanoke, Virginia
,z
O A
1838 COMPREHENSIVE EFFECTIVE DATE
FINANCIAL POLICY JULY 1, 2018
Section 1 — Overview
1. Background
Fiscal integrity is a top priority for the County of Roanoke. The County's financial policies
establish the framework for financial planning and management and provide guidelines
against which budgetary performance can be measured and proposals for future funding can
be evaluated. The policies further ensure that the County continues to be a model for
excellence in government by providing direction in the areas of revenues, operating
expenditures, Capital Improvement Program, reserves and debt management.
2. Purpose
The primary objective of financial management policies is for the Board of Supervisors to
create the framework for making sound financial decisions. The County Administrator is
responsible for the daily administration of the Board's policies and general County operations.
The County Administrator may designate other County officials to assist in the administration
of these policies. These financial management policies are a statement of the guidelines and
goals that influence and guide the financial management practices of the County of Roanoke.
Financial management policies that are adopted, adhered to, and regularly reviewed are
recognized as the cornerstone of sound financial management.
3. Objectives
A. To contribute significantly to the County's ability to insulate itself from fiscal crises and
economic disruption in order to ensure continuous delivery of public services.
B. To provide sound principles to guide the important decisions of the Board and of
management which have significant fiscal impact.
C. To assist sound management of County government by providing accurate and timely
information on financial condition.
D. To promote long-term financial planning in regards to both day-to-day operations and
capital improvements.
E. To set forth operational principles which minimize the cost of government, to the extent
consistent with services desired by the public, and which minimize financial risk.
F. To ensure the legal use of all County funds through a good system of financial security and
internal controls.
G. To employ policies which prevent undue or unbalanced reliance on certain revenues, which
distribute the costs of county government services as fairly as possible, and which provide
adequate funds to operate desired programs.
H. To provide essential public facilities and prevent deterioration of the County's public
facilities and its capital plan.
I. To enhance access to short-term and long-term markets by helping to achieve the highest
credit and bond ratings possible.
J. To protect and enhance the County's credit rating and prevent default on any debts.
of �0AAfo COUNTY OF ROANOKE
z Roanoke, Virginia
,z
O A
1838 COMPREHENSIVE
FINANCIAL POLICY
Section 2 — Financial Reporting
Policy Number
EFFECTIVE DATE
JULY 1, 2018
PAGE 2 OF 16
1. The County's accounting and financial reporting will comply with:
A. Generally Accepted Accounting Principles of the United States of America (GAAP)
B. Government Accounting Standards (GAS), issued by the Comptroller General of the United
States
C. The Uniform Financial Reporting Manual, issued by the Auditor of Public Accounts of the
Commonwealth of Virginia
D. Specifications for Audits of Counties, Cities and Towns, issued by the Auditor of Public
Accounts of the Commonwealth of Virginia
E. Circular A-133 Audits of States, Local Governments, and Non -Profit Organizations, Uniform
Administrative Requirements, Cost Principles and Audit Requirements for Federal Awards,
and the Compliance Supplement, issued by the U.S. Office of Management and Budget
F. The Government Finance Officers Association's Certificate of Achievement for Excellence
in Financial Reporting and Distinguished Budget Presentation Award Programs
G. The Code of Virginia, and other legal and regulatory bodies' requirements, as applicable
2. The County will establish and maintain an internal control structure designed to protect the
County from loss, theft and misuse. The structure will be designed to provide reasonable
assurance of that objective; the concept of reasonable assurance recognizes that:
A. The cost of a control should not exceed the benefits likely to be derived
B. The valuation of costs and benefits requires estimates and judgments made by
management
3. The County will also maintain a complete inventory of capital assets meeting its capitalization
thresholds, in accordance with Generally Accepted Accounting Principles of the United States
of America.
4. A comprehensive, annual financial audit, including an audit of federal grants, will be conducted
by an independent public accounting firm, and the results of that audit will be presented
publicly to the Board of Supervisors by December 31, following the end of the previous fiscal
year.
Section 3 —Annual Budget
1. Budget Ordinances
A. The County's Annual Budget Ordinances will be balanced, adopted and administered in
accordance with the Local Government Budget and Fiscal Control Act (N. C. G. S 159-
8{x}). This Act states that a budget ordinance is balanced when the sum of estimated net
revenues and appropriated fund balances is equal to appropriations.
of �oAAfo COUNTY OF ROANOKE Policy Number PAGE 3 OF 16
z Roanoke, Virginia
,z
O A
1838 COMPREHENSIVE EFFECTIVE DATE
FINANCIAL POLICY JULY 1, 2018
B. The General Fund, Special Revenue Funds, Debt Service Funds, Capital Project Funds,
Schools and Internal Service Funds shall have legally adopted budgets through the annual
budget ordinances.
C. County staff shall provide for approval by the Board five ordinances providing
appropriations for County and Schools operating, capital, and transfers. These ordinances
will include:
1. An ordinance appropriating funds for the County's fiscal year operations budget.
2. An ordinance appropriating funds for the County's fiscal year capital budget.
3. An ordinance appropriating funds for the County's transfers to, and on behalf of, the
Schools.
4. An ordinance appropriating funds for the Schools' fiscal year operations budget.
5. An ordinance appropriating funds for the Schools' fiscal year capital budget.
D. The Board does not legally adopt budgets in instances where the County acts as fiscal
agent for trust and agency funds.
2. Budgeting Process
A. County staff shall provide to the Board a calendar of significant dates and legal
requirements associated with the next fiscal year budget no later than October of each
year.
B. The County Administrator shall submit to the Board a balanced Capital Budget in January
and a balanced Operating Budget in March for the next fiscal year.
C. After a series of work sessions and public hearings on the budget, the Board of
Supervisors shall adopt the annual operating and capital budgets for both the County and
the Schools in May for appropriations effective July 1 of the next fiscal year.
3. Budgeting Philosophy
The budget will provide for current expenditures balanced with current revenues. It will
address the adequate maintenance and orderly replacement of capital assets, and the
adequate funding of all retirement systems and other post -employment benefits (OPEB).
Funding shall be identified for incremental operating costs associated with capital projects in
the operating budget after being identified and approved in the Capital Improvement Program.
4. Budget Monitoring
The County will maintain a budget control system and staff will monitor and evaluate
expenditures and revenues as compared to budget and/or prior year-to-date reports. The
County Administrator will propose recommendations to the Board for adjustments as needed.
Section 4 — Revenues and Expenditures
1. Revenues
A. The County will strive to maintain a diversified and stable revenue system to shelter the
organization from fluctuations in any single revenue source and ensure its ability to provide
ongoing service.
of �oAAfo COUNTY OF ROANOKE Policy Number PAGE 4 OF 16
z Roanoke, Virginia
,z
O A
1838 COMPREHENSIVE EFFECTIVE DATE
FINANCIAL POLICY JULY 1, 2018
B. The County's annual revenue streams consist of local, state, federal and other financing
sources. It is the County's policy for one-time revenues to be used to fund capital projects
or other non-recurring expenditures. County staff will provide revenue estimates for the
next fiscal year by using historical data, current economic conditions, and future economic
projections.
C. Revenue estimates are monitored on a regular basis to identify any potential trends that
would significantly impact the revenue sources. In January of each year, County staff will
provide for information to the Board a mid -year update of current year revenues as relates
to the adopted budget. In September of each year, or soon thereafter as preliminary year-
end revenue estimates are available, County staff will provide for information to the Board
a year-end comparison of budgeted to actual revenues for the previous fiscal year.
2. Revenue Team
A. A Revenue Team composed of County staff and appropriate Constitutional Officers meets
to review current construction trends, the number of authorized building permits, housing
sales, mortgage rates, and other economic data which impact Real Estate Tax revenue
collections.
B. In addition, the Revenue Team uses statistical models to estimate revenue categories
including but not limited to: the Personal Property Tax; Local Sales Tax; Business,
Professional, and Occupational License Tax; Consumer Utility Tax; Hotel and Motel Tax;
Meals Tax; and Recordation Tax.
3. Fees and Charges
A. Roanoke County, where possible, institutes user fees and charges for providing
specialized programs and services. Established rates recover operational costs, indirect
costs, and capital or debt service costs. The County will regularly review user fee charges
and related expenditures to determine if it is meeting pre -established recovery goals.
B. As part of the budget development process, County staff shall produce an annual Fee
Compendium to be adopted by the Board of Supervisors at the same time as adoption of
the Annual Budget Ordinances. The Fee Compendium will list all fees and charges
imposed by the County for providing specialized programs and services. The Fee
Compendium will provide details on the type of fee, authority to levy the fee, current fees,
and proposed changes to the current fees.
4. Revenue Sharing Formula with Schools
The Revenue Sharing formula establishes a mechanism to share County revenue with the
Schools through the application of a formula. The formula accounts for the shifting dynamic
between the level of student enrollment and the overall population of the County to determine
a revenue sharing ratio that provides both organizations an equitable amount of resources
relative to need. The allocation formula includes the following calculations:
A. Calculate Three -Year Average:
Establish a three year rolling average index for the changes in county population and
student enrollment. Using a rolling average eliminates significant fluctuations from year to
Roarvo Policy Number PAGE 5 OF 16
o� COUNTY OF ROANOKE
z Roanoke, Virginia
z
J A
7838' COMPREHENSIVE EFFECTIVE DATE
FINANCIAL POLICY JULY 1, 2018
year while recognizing that these trends affect the provision of services. The statistics used
for this index will be derived from publicly available sources as follows:
1. County population - Population numbers published in the statistical section of the
Roanoke County Comprehensive Annual Financial Report (County CAFR).
2. Student enrollment - Average Daily Membership (ADM) published in the statistical
section of the Roanoke County Schools Comprehensive Annual Financial Report
(School CAFR) and the Budget and Salary Scales (adopted budget).
B. Calculate Net Allocation Change:
1. Calculate a payroll factor using the percentage of school personnel budget to total
personnel budget for the County and the Schools for the current year.
2. The payroll factor should be applied to the change in the three year rolling average
index and then applied to the current year index to arrive at a net tax allocation change
for the new budget year.
C. Calculate Increase/(Decrease) in School Transfer -
1 .
ransfer:1. Apply the net tax allocation change to the allocation percent calculated in the prior year
to arrive at the new percent of adopted budget net taxes. This percent is then applied to
the projected County revenues for total general property taxes and total other local
taxes as published in the Roanoke County Annual Financial Plan (General Fund
Summary of Revenue).
2. The amount budgeted to Visit Virginia's Blue Ridge (previously committed by Board of
Supervisors action) will be subtracted from the General Property and Local Tax
projection.
3. New economic development incentives will be subtracted from the General Property
and Local Tax projection and added back when each incentive arrangement expires.
4. Increases in the amount budgeted for Comprehensive Services Act (CPMT) will be
subtracted from the General Property and Local Tax projection (since this provides
benefits to and satisfies obligations of both the school and general population).
5. The increase or decrease in the school transfer is then added to or deducted from the
transfer to schools for the previous year to arrive at the total transfer to schools for the
next budget.
D. The Schools Revenue Sharing formula calculation shall be included in the County's annual
financial plan.
E. Other:
1. During each annual budget preparation cycle, County staff and School staff shall work
collaboratively to determine the increase or decrease in the operating allocation to the
schools from the County.
2. The allocation of revenues are subject to annual appropriations by the Board of
Supervisors.
5. Expenditures
The County's expenditure budget is divided into functional areas (departments), transfers,
non -departmental, and capital fund expenditures. In coordination with departments, Budget
staff will monitor expenditures throughout the fiscal year to ensure compliance with legal
requirements and accounting standards.
of �oAAfo COUNTY OF ROANOKE Policy Number PAGE 6 OF 16
z Roanoke, Virginia
,z
O A
1838 COMPREHENSIVE EFFECTIVE DATE
FINANCIAL POLICY JULY 1, 2018
Expenditure estimates are monitored on a regular basis to identify any potential trends that
would significantly impact the approved budgeted expenditure levels. In January of each year,
County staff will provide for information to the Board a mid -year update of current year
expenditures as relates to the adopted budget. In September of each year, or soon thereafter
as preliminary year-end expenditure estimates are available, County staff will provide for
information to the Board a year-end comparison of budgeted to actual expenditures for the
previous fiscal year.
6. Board of Supervisors Contingency Expenditure Budget
The Board of Supervisors generally appropriates a Contingency budget to provide for
unanticipated expenditures that arise during the year. This budget is recommended to be
established at a minimum of $50,000, though the Board has the discretion to alter that amount
through the budget appropriation process. The use of these funds require approval of the
Board of Supervisors.
7. Expenditure Budget Transfers
Language is included in the annual Operating and Capital Budget Ordinances providing the
County Administrator, or his/her designee, the authority to transfer funds within and between
appropriation functions. Amendments impacting the level of budget authority established by
fund through the Annual Operating and Capital Budget Ordinances must be approved by the
Board as a supplemental budget appropriation. Language governing expenditure budget
transfers will be reviewed by staff and approved by the Board on an annual basis.
8. Revenue and Expenditure Forecasting
A forecast of General Fund expenditures and revenues is developed as part of each year's
budget process and is periodically updated. Individual and aggregate revenue categories, as
well as expenditures, are projected by revenue and/or expenditure type. Historical growth
rates, economic assumptions and County expenditure priorities are all used in developing the
forecast. This tool is used as a planning document for developing the budget guidelines and
for evaluating the future impact of current year decisions. Forecasts of revenues and
expenditures are also developed for the County's Capital Improvement Program. Information
regarding those forecasts can be found in the section entitled "Capital Improvement Planning".
9. Fiscal Impact Review
It is County policy that all items having potential fiscal impact be presented to the Board of
Supervisors for review. This review can be part of the annual operating or capital budgets, or
as part of the "Fiscal Impact" section of a Board Report Form, which accompanies all Board
agenda items. Effective management dictates that the Board of Supervisors and County
citizens be presented with the direct and indirect costs of all items as part of the decision
making process.
of �oAAfo COUNTY OF ROANOKE Policy Number PAGE 7 OF 16
z Roanoke, Virginia
,z
O A
1838 COMPREHENSIVE EFFECTIVE DATE
FINANCIAL POLICY JULY 1, 2018
Section 5 — Capital Improvement Planning
1. Ten -Year Capital Improvement Program (CIP)
The County Administrator annually will submit to the Board for its consideration a ten-year
Capital Improvement Program (CIP) pursuant to the timeline established in the annual budget
preparation schedule. For inclusion in the Capital Improvement Program, a project or
collection of projects generally must have an estimated useful life that exceeds five years with
a total project cost of at least $100,000. The Capital Improvement Program shall include the
following elements:
A. A statement of the objectives of the Capital Improvement Program and its relationship to
the County's Strategic Plans, as applicable;
B. An estimate of the cost and anticipated sources of funds for each project included in the
Capital Improvement Program. Each year of the ten-year program must be balanced in
that all capital expenditures included in the plan must have an identified funding source.
C. A summary of capital projects considered, but not included in the balanced ten-year
program.
D. An estimate of the fiscal impact of the project, including additional operating costs or
revenues impacting the County's Operating Budget associated with the project.
E. Adherence to all policies related to debt and debt service as described in the section
entitled "Debt Management".
2. Capital Year Budget
The first year of the Capital Improvement Program, also known as the Capital Year Budget,
will be appropriated by the Board as part of the adoption of the annual Capital Budget
Ordinance. The annual Capital Budget Ordinance shall set forth specific provisions regarding
funds remaining at project completion and the ability of the County Administrator to transfer
funds to facilitate the completion of an existing project.
3. Facilities Assessment
The County and Schools shall obtain an independent, professional, and comprehensive
facilities assessment to ascertain the present condition of each facility, and to assist the
County and the Schools in forecasting capital funding requirements to address deficiencies.
The assessment shall also be used to establish priorities for the maintenance, repair,
enhancement, or replacement of facilities and their component systems, and to be used in the
development of the Capital Maintenance Program and Capital Improvement Program. Further,
the analysis as presented in the assessment shall be useful when identifying and justifying
needs to support a future bond issue. This evaluation shall be reviewed internally by staff on
an annual basis and updated by an independent professional every 7-10 years after the initial
evaluation.
of �oAAfo COUNTY OF ROANOKE Policy Number PAGE 8 OF 16
z Roanoke, Virginia
,z
O A
1838 COMPREHENSIVE EFFECTIVE DATE
FINANCIAL POLICY JULY 1, 2018
4. Capital Project Status Reports
On a bi-annual basis, County staff shall provide the Board with a summary status of all active
capital projects. The summary shall include status of the project, financial information, and
other relevant information as determined by staff.
Section 6 — "Pay-as-you-go" Financing
1. A number of options are available for financing the Capital Improvement Program, including
bond proceeds and other non -County funding sources (e.g. grants and private capital
contributions). The County generally looks to maximize the use of current revenue, or "pay-as-
you-go" financing. Financing capital projects from current revenues indicates the County's
intent to show purposeful restraint in incurring long-term debt.
2. The decision for using current revenues to fund a capital project is based on the merits of the
particular project in relation to an agreed upon set of criteria, including balancing capital needs
versus operating needs. In determining the merits of "pay-as-you-go" financing, non-recurring
revenues should not be used for recurring expenditures.
Section 7 — Debt Management
1. Legal Requirements
The County shall comply with all requirements of the Code of Virginia and other legal and
regulatory bodies' requirements regarding the issuance of bonds and other financing sources
for the County or its debt issuing authorities. The County shall comply with the U.S. Internal
Revenue Service arbitrage rebate requirements for bonded indebtedness. In addition, the
County will institute a control structure to monitor and ensure compliance with bond
covenants.
2. Purposes for Debt Issuance
The County may issue debt for the purpose of acquiring or constructing Capital Projects,
including buildings, machinery, equipment, furniture and fixtures. This includes debt issued on
behalf of the Schools for the same purposes. When feasible, debt issuances will be pooled
together to minimize issuance costs. The Capital Improvements Program will identify all debt -
related projects and the debt service impact upon operations identified.
3. Guidelines for Issuing Debt
The County recognizes that the essential components of a debt policy are the limitations and
guidelines set by the locality. The following guidelines reflect the County's philosophy
concerning indebtedness:
A. Debt issuances are limited to $10 million annually with one year designated for County
capital projects and two years designated for School Capital projects included in the
adopted Capital Improvement Program (CIP). Bond funding shall be allocated to the County
in FY 2020, FY 2023, and FY 2026; to the Schools FY 2019, FY 2021, FY 2022, FY 2024,
of �oAAfo COUNTY OF ROANOKE Policy Number PAGE 9 OF 16
z Roanoke, Virginia
,z
O A
1838 COMPREHENSIVE EFFECTIVE DATE
FINANCIAL POLICY JULY 1, 2018
FY 2025, FY 2027, and FY 2028. Effective with capital projects appropriated on or after July
1, 2018 (FY 2019), bond funding may be "banked" for purposes of accumulating bonding
capacity where project costs exceed the $10 million limit.
B. The County will not use short-term borrowing to finance operating needs, except in
instances as described under "Revenue Anticipation Notes".
C. Long-term debt will be used in compliance with all aspects of the debt policy.
D. The maturity of any debt will not exceed the expected useful life of the project for which the
debt is issued. No bonds greater than twenty (20) years will be issued.
E. Each project proposed for financing through debt issuance will have a multi-year analysis
performed for review of the debt service impact on the County's General Government
Operating Budget and an analysis on the County's approved Debt Ratios as indicated in
the section entitled "Debt Limits".
F. At a minimum, all issuances of Debt require approval and appropriation of the proceeds by
the Board of Supervisors with additional approvals, if applicable, indicated in the section
entitled "Types of Debt/Structural Features".
4. Funding Sources for the Debt Payment Reserve Fund
A. Annual contributions to the Debt Payment Reserve Fund shall total $8.2 million from the
following sources: $4.2 million from County sources, $2.2 million from School sources, and
$1.8 million from expired Economic Development incentives. Additionally, changes in debt
service payments beneficial to the fund shall be retained by the Fund. Contributions will be
accounted for in the Debt Payment Reserve Fund.
B. The Debt Payment Reserve Fund will use a benchmark interest rate assumption of six
percent (6%). Contribution levels to support the capital financing plan will be reviewed
annually and changed upon mutual agreement of the Board of Supervisors and School
Board.
C. Funding in the amount of $1 million from the County and $1 million from the Schools will
continue for the Capital Maintenance Programs and be included in the Capital
Improvement Program.
Section 8 — Debt Limits
1. The County does not have any Constitutional or Statutory Debt Limits. The County does
abide by the following self-imposed debt targets:
A. Net Outstanding and Projected Debt as a Percentage of Total Taxable Assessed
Value will not exceed three percent (3%) in the current fiscal year or subsequent fiscal
years as detailed in the County's Capital Improvement Program.
B. General Obligation Current and Projected Debt Service as a Percentage of General
Government Expenditures will not exceed ten percent (10%) in the current fiscal year or
subsequent fiscal years as detailed in the County's Capital Improvement Program. General
Government expenditures include the Governmental Fund expenditures, the School Board
component unit expenditures, and County and School transfer to capital projects and
Proprietary Funds as outlined in the County's Comprehensive Annual Financial Report
(CAFR).
of �oAAfo COUNTY OF ROANOKE Policy Number PAGE 10 OF 16
z Roanoke, Virginia
,z
O A
1838 COMPREHENSIVE EFFECTIVE DATE
FINANCIAL POLICY JULY 1, 2018
2. All debt ratio calculations shall include debt issued on behalf of the Schools. These ratios will
be calculated each year in conjunction with the budget process and the annual audit.
Section 9 — Types of Debt/Structural Features
1. Revenue Anticipation Notes
A. The County's General Government Fund Balance was designed to provide adequate cash
flow to avoid the need for Revenue Anticipation Notes (RANs).
B. The County may issue RANs in an extreme emergency beyond the County's control or
ability to forecast when the revenue source will be received subsequent to the timing of
funds needed.
C. The County will issue RANs for a period not to exceed the one year period permitted under
the Constitution of Virginia, Article VII section 10.
2. General Obligation Bonds
A. The Constitution of Virginia, Article VII section 10, and the Public Finance Act provide the
authority for a County to issue General Obligation (GO) Debt with no limit on the amount of
GO Debt that a County may issue. The County may issue GO Debt for capital projects or
other properly approved projects.
B. All debt secured by the general obligation of the County must be approved by the Board of
Supervisors and a public referendum, with the exception of Virginia Public School Authority
(VPSA) Bonds and State Literary Fund Loans, which do not need approval by referendum.
3. VPSA Bonds and State Literary Fund Loans
A. School capital projects may be constructed with debt, either through VPSA Bonds or State
Literary Fund Loans, and refunding bonds with preference given to accessibility and
interest rates.
B. Approval of the School Board is required prior to approval by the Board of Supervisors.
4. Lease/Revenue Bonds
A. The County may issue Lease/Revenue bonds to fund enterprise activities or for capital
projects that will generate a revenue stream.
B. The bonds will include written covenants, which will require that the revenue sources are
sufficient to fund the debt service requirements.
C. Cost of issuance, debt service reserve funds and capitalized interest may be included in
the capital project costs and thus are fully eligible for reimbursement from bond proceeds.
5. Capital Acquisition Notes and Leases
The County may issue short-term notes or capital leases to purchase buildings, machinery,
equipment, furniture and fixtures.
of �oAAfo COUNTY OF ROANOKE Policy Number PAGE 11 OF 16
z Roanoke, Virginia
,z
O A
1838 COMPREHENSIVE EFFECTIVE DATE
FINANCIAL POLICY JULY 1, 2018
6. Moral Obligation Debt
A. The County may enter into leases, contracts, or other agreements with other public bodies,
which provide for the payment of debt when revenues of such agencies may prove
insufficient to cover debt service.
B. Payment of such moral obligation debt service will be done when the best interest of the
County is clearly demonstrated.
C. While such moral obligation support does not affect the debt limit of the County, the
amount of bonds issued with the County's moral obligation should be controlled in order to
limit potential demands on the County. There is no legal obligation, but the County is
placing its good name and reputation on the line and there is every expectation that the
County would make good any deficiencies when a default exists.
7. Credit Objectives
The County of Roanoke will strive to maintain or improve its current bond ratings. The County
will also maintain relationships with the rating agencies that assign ratings to the County's
various debt obligations. The rating agencies will be kept abreast of the County's financial
condition by providing them with the County's Comprehensive Annual Financial Report
(CAFR) and the Operating and Capital Improvement Program Budget.
8. Authorized Methods of Sale
The County will select a method of sale that is the most appropriate in light of financial,
market, transaction -specific and issuer -related conditions. Debt obligations are generally
issued through competitive sale. If the County and its financial advisor determine that a
competitive sale would not result in the best outcome for the County, then a negotiated sale,
private placement or other method may be chosen.
9. Selecting Outside Finance Professionals
The County of Roanoke will retain external finance professionals to be selected through a
competitive process. The finance professionals will include, but may not be limited to, the
financial advisor, bond counsel and the underwriter. The finance professionals will assist in
developing a bond issuance strategy, preparing bond documents and marketing bonds to
investors. The length of the contracts will be determined by the County. The selection process
will require experience in the following: municipal debt, diverse financial structuring, and
pricing municipal securities.
10. Post -Issuance Compliance
A. The Director of Finance will oversee post -issuance compliance activities to ensure
compliance with federal guidelines and other legal regulatory requirements including -
1 .
ncluding:1. Tracking proceeds of a debt issuance to ensure they are spent on qualified tax-exempt
debt purposes
2. Maintaining detailed records of all expenditures and investments related to debt funds
3. Ensuring that projects financed are used in a manner consistent with legal
requirements
of �0AAfo COUNTY OF ROANOKE
z Roanoke, Virginia
,z
O A
1838 COMPREHENSIVE
FINANCIAL POLICY
Policy Number
EFFECTIVE DATE
JULY 1, 2018
PAGE 12 OF 16
4. Reporting of necessary disclosure information and other required fillings in a timely
manner
5. Monitoring compliance with applicable arbitrage rules and performing required rebate
calculations in a timely manner
B. The Director of Finance may consult with bond counsel, financial advisors or other
professionals as deemed appropriate to meet the post -issuance compliance requirements.
Section 10 — Reserves
1. General Government Fund
A. The County of Roanoke's General Government Fund (Fund C100) Unassigned Fund
Balance will be maintained to provide the County with sufficient working capital and a
comfortable margin of safety to address emergencies and unexpected declines in revenue.
B. The General Government Fund's Unassigned Fund Balance should not be used to support
recurring operating expenditures outside of the current budget year. If a budget variance
requires the use of Unassigned Fund Balance, the County will decrease the General
Government Fund's expenditures and/or increase the General Government Fund's
revenues to prevent using the Unassigned Fund Balance for two consecutive fiscal years
to subsidize General Fund operations.
C. The General Government Fund's Unassigned Fund Balance will be as follows:
Fund
Number
Fund Name
Policy
C100
General Government Fund
Twelve percent (12%) of budgeted annual
General Government expenditures
D. In the event that the General Government Fund's Unassigned Fund Balance is used to
provide for temporary funding of unforeseen emergency needs, the County shall restore
the balance to the twelve percent (12%) minimum, as defined above, within two fiscal
years following the fiscal year in which the event occurred. This will provide for full recovery
of the targeted General Government Fund Unassigned Fund Balance in a timely manner.
E. Funds in excess of the maximum annual requirements outlined above may be considered
to supplement "pay-as-you-go" capital expenditures or other nonrecurring expenditures
with Board approval.
2. Other General Funds
A. For the funds listed below, an annual Unassigned Fund Balance shall be maintained as
follows:
of �0AAfo COUNTY OF ROANOKE
z Roanoke, Virginia
,z
O A
1838 COMPREHENSIVE
FINANCIAL POLICY
Policy Number
EFFECTIVE DATE
JULY 1, 2018
PAGE 13 OF 16
B. In the event that any of the Fund's Unassigned Fund Balance is used to provide for
temporary funding of unforeseen emergency needs, the County shall restore the balance
to the minimum, as defined above, within two fiscal years following the fiscal year in which
the event occurred. This will provide for full recovery of the targeted Fund Unassigned
Fund Balance in a timely manner.
C. Funds in excess of the Unassigned Fund Balance policy outlined above may be
considered to supplement "pay-as-you-go" capital expenditures or other nonrecurring
expenditures with Board approval.
D. All other County Funds structured under the County's General Fund may carry a reserve
balance but do not have a specific annual target. These County Funds are not permitted to
expend funds in excess of available revenues.
3. Capital Reserve Funds
The County will maintain funds for the specific use of providing "pay-as-you-go" funding for
capital projects as detailed in the approved Capital Improvement Program. Contributions to
the Capital Reserve Fund will primarily be made with year-end expenditure savings and
revenue surplus balances. On annual basis, County staff shall present to the Board for
consideration the allocation of year-end balances to support the Capital Reserve Fund. There
are no minimum fund balance requirements associated with the Capital Reserve Fund.
4. Internal Service Fund Reserves
The County has three funds classified as Internal Services Funds; they include the Health
Insurance Fund, Dental Insurance Fund, and Risk Management Fund.
Fund
Item
Number
Fund Name
Policy
Children's Services
Twenty percent (20%) of budgeted annual
1.
C111
Act (CSA)
expenditures
Criminal Justice
Ten percent (10%) of budgeted annual
2.
C126
Academy
expenditures
Seven and a half percent (7.5%) of budgeted
3.
C130
Fleet Service Center
annual expenditures
Communications
Ten percent (10%) of budgeted annual
4.
C142
Shop
expenditures
Emergency
Seven and a half percent (7.5%) of budgeted
5.
C144
Communications
annual expenditures
Center (ECC)
Five percent (5%) of budgeted annual
6.
C150
Recreation Fee Class
expenditures
B. In the event that any of the Fund's Unassigned Fund Balance is used to provide for
temporary funding of unforeseen emergency needs, the County shall restore the balance
to the minimum, as defined above, within two fiscal years following the fiscal year in which
the event occurred. This will provide for full recovery of the targeted Fund Unassigned
Fund Balance in a timely manner.
C. Funds in excess of the Unassigned Fund Balance policy outlined above may be
considered to supplement "pay-as-you-go" capital expenditures or other nonrecurring
expenditures with Board approval.
D. All other County Funds structured under the County's General Fund may carry a reserve
balance but do not have a specific annual target. These County Funds are not permitted to
expend funds in excess of available revenues.
3. Capital Reserve Funds
The County will maintain funds for the specific use of providing "pay-as-you-go" funding for
capital projects as detailed in the approved Capital Improvement Program. Contributions to
the Capital Reserve Fund will primarily be made with year-end expenditure savings and
revenue surplus balances. On annual basis, County staff shall present to the Board for
consideration the allocation of year-end balances to support the Capital Reserve Fund. There
are no minimum fund balance requirements associated with the Capital Reserve Fund.
4. Internal Service Fund Reserves
The County has three funds classified as Internal Services Funds; they include the Health
Insurance Fund, Dental Insurance Fund, and Risk Management Fund.
of �oAAfo COUNTY OF ROANOKE Policy Number PAGE 14 OF 16
z Roanoke, Virginia
,z
O A
1838 COMPREHENSIVE EFFECTIVE DATE
FINANCIAL POLICY JULY 1, 2018
A. Health Insurance Fund (Fund C700)
1. So as long as the County continues the current policy of self-insuring health insurance
costs, a reserve for healthcare costs shall be maintained as follows:
C
Fund
Fund Name
Policy
Number
Fund Name
Policy
C700
Health Insurance Fund
Ten percent (10%) of budgeted healthcare
costs plus a reserve equal to the estimated
incurred but not reported (IBNR) claims.
2. To the extent the reserve falls below the minimum threshold of 10%, the reserve will be
restored to that level within two fiscal years. Funds in excess of the Unassigned Fund
Balance policies in all Other Funds outlined in this policy may be transferred to the
Health Insurance Fund to restore the Health Insurance Fund Balance policy with Board
approval.
3. At no time shall the use of funds in excess of the 10% fund balance plus a reserve
equal to the estimated incurred but not reported (IBNR) claims be used to reduce the
annual employee contribution to the Health Insurance Fund, except in cases where a
temporary rate adjustment has been made to restore minimum Health Insurance Fund
Balance levels. Funds in excess of the Unassigned Fund Balance policy outlined above
may be considered to supplement "pay-as-you-go" capital expenditures or other
nonrecurring expenditures with Board approval.
Dental Insurance (Fund C705)
So as long as the County elects to provide a fully insured Dental plan, no reserve is
required. If the County elects to self -insure Dental Insurance costs in the future, a reserve
for dental costs will be established by the Board.
Risk Management (Fund C710)
1. So as long as the County continues the current policy of self-insuring Worker's
Compensation costs, a reserve for Risk Management costs shall be maintained as
follows:
Fund
Number
Fund Name
Policy
C710
Risk Management Fund
Ten percent (10%) of budgeted risk
management costs plus a reserve equal to the
estimated incurred but not reported (IBNR)
claims.
A reserve of $500,000 shall be established for
potential auto or property claims.
2. To the extent the reserve falls below the established policy, the reserve will be restored
to that level within two fiscal years. Funds in excess of the Unassigned Fund Balance
of �oAAfo COUNTY OF ROANOKE Policy Number PAGE 15 OF 16
z Roanoke, Virginia
,z
O A
1838 COMPREHENSIVE EFFECTIVE DATE
FINANCIAL POLICY JULY 1, 2018
policies in all Other Funds outlined in this policy may be transferred to the Risk
Management Fund to restore the Risk Management Fund Balance policy with Board
approval.
5. Roanoke County Public Schools Reserves and Year End Allocation
A. Roanoke County Public Schools will maintain a $2 million unappropriated balance. This
balance is available for unexpected revenue shortfalls, unplanned significant expenditures
increases, and emergency appropriations. The balance will be reserved for financial
emergencies and when appropriations are necessary, the balance will be replenished with
the next available year end funds from the School Operations.
B. All School Operating Fund appropriations remaining at the end of the year will not lapse
but shall be appropriated to the Schools and used for Major Capital projects, Minor Capital
projects, Capital Maintenance Program, School Safety and Security, and/or
Comprehensive Services Act reserves.
Section 11 —Cash Management/Investments
1. Maintaining the safety of the principal of the County's public investment is the highest priority
in the County's cash management policy. The secondary and tertiary priorities are the
maintenance of liquidity of the investment and optimization of the rate of return within the
parameters of the Code of Virginia, respectively. Funds held for future capital projects are
invested in accordance with these objectives, and in such a manner so as to ensure
compliance with U.S. Treasury arbitrage regulations. The County maintains cash and
temporary investments in several investment portfolios.
2. The Treasurer, County of Roanoke (an elected Constitutional Officer) is responsible for
maintaining and updating a separate investment policy, which is approved by the Board of
Supervisors.
Section 12 — Internal Controls
1. A comprehensive system of financial internal controls shall be maintained in order to protect
the County's assets and sustain the integrity of the County's financial systems.
2. Managers at all levels shall be responsible for implementing sound controls and for regularly
monitoring and measuring their effectiveness.
Section 13 — Administration and Approvals
1. Responsible Department
The Department of Finance and the Office of Management and Budget are responsible for the
administration of this policy.
2. Policy Authority
The Board of Supervisors authorizes the use of this policy.
of �oAAfo COUNTY OF ROANOKE Policy Number PAGE 16 OF 16
z Roanoke, Virginia
,z
O A
1838 COMPREHENSIVE EFFECTIVE DATE
FINANCIAL POLICY JULY 1, 2018
3. Review Date
This policy will be reviewed annually and updated as necessary for modifications.
AT A REGULAR MEETING OF THE BOARD OF SUPERVISORS OF ROANOKE
COUNTY, VIRGINIA, HELD AT THE ROANOKE COUNTY ADMINISTRATION
CENTER ON TUESDAY, APRIL 24, 2018
RESOLUTION 042418-2 OF THE BOARD OF SUPERVISORS OF THE
COUNTY OF ROANOKE, VIRGINIA, DECLARING ITS INTENTION TO
REIMBURSE ITSELF FROM THE PROCEEDS OF A FINANCING FOR
CAPITAL PROJETS FOR PUBLIC SCHOOL PURPOSES
Whereas, the Board of Supervisors of the County of Roanoke, Virginia (the
"County") have determined that it may be necessary or desirable to advance money to
pay the costs of certain capital projects for public school purposes, including without
limitation the renovation of Cave Spring High School (the "Projects")
NOW THEREFORE, BE IT RESOLVED, BY THE BOARD OF SUPERVISORS
OF ROANOKE COUNTY, VIRGINIA, as follows:
1. The Board of Supervisors adopts this declaration of official intent under
Treasury Regulations Section 1.150-2.
2. The Board of Supervisors reasonably expects to reimburse advances made
or to be made by the County or the School Board to pay the costs of the
Project from the proceeds of the County's debt or other financings. The
maximum amount of debt or other financing expected to be issued in one or
more series for the Project is $30,000,000.
3. On the date each advance is paid, it will be a capital expenditure (or would
be with a proper election) under general federal income tax principles or will
otherwise comply with the requirements of Treas. Regs. § 1.150-2(d)(3).
4. The adoption of this Resolution is consistent with the budgetary and financial
circumstances of the County Board of Supervisors.
5. This resolution shall take effect immediately upon its adoption.
Page 1 of 2
On motion of Supervisor McNamara to adopt the resolution, seconded by
Supervisor Assaid, the motion was approved by the following recorded vote:
AYES: Supervisors Assaid, North, McNamara, Peters, Hooker
NAYS: None
A COF/Y TESTE:
Deborah C. Jack%
Chief Deputy Cle to a Board
cc: Rebecca Owens, Director of Finance
Christopher Bever, Director of Management and Budget
Page 2 of 2
ACTION NO. A -042418-3.a
ITEM NO. H_2
AT A REGULAR MEETING OF THE BOARD OF SUPERVISORS OF ROANOKE
COUNTY, VIRGINIA HELD AT THE ROANOKE COUNTY ADMINISTRATION CENTER
MEETING DATE: April 24, 2018
AGENDA ITEM: Request to accept and allocate funds in the amount of
$3,671 to the Clerk of Circuit Court from the Commonwealth
of Virginia for Technology Trust Funds
SUBMITTED BY:
APPROVED BY:
ISSUE:
Jill Camilletti
Deputy Clerk IV
Thomas C. Gates
County Administrator
Acceptance and allocation of funds in the amount of $3,671 to the Clerk of the Circuit
Court from the Commonwealth of Virginia
BACKGROUND:
Technology Trust Funds represent fees collected by the Roanoke County Circuit Court
Clerk's Office, have been received from the State in the amount of $3,671. In
accordance with State of Virginia Code Section 17.1-279 stated the Circuit Court Clerk's
Office shall assess a $5.00 fee called Technology Trust Fund Fee. Each month, the
Clerk's Office can request the fees that were assessed the previous month. The code
section further states that four of every five dollar fee shall be allocated by the
Compensation Board from the trust fund for the purposes of obtaining and updating
office automation and information technology equipment including software and
conversion services; preserving, maintaining and enhancing court records, including but
not limited to the costs of repairs, maintaining and enhancing court records, consulting
services, service contracts, redaction of social security numbers from land records and
system replacement or upgrades and improving public access to court records.
DISCUSSION:
The funds received from the Commonwealth of Virginia have been earmarked for
Page 1 of 2
maintenance needs for the Clerk of circuit Court, specifically towards the twice yearly
maintenance bill from the Supreme Court for maintaining their records, equipment, etc.
FISCAL IMPACT:
All funds are provided by the Commonwealth of Virginia. No County matching funds are
required.
STAFF RECOMMENDATION:
Staff recommends accepting and allocating $3,671 to the Clerk of Circuit Court from the
Commonwealth of Virginia.
VOTE:
Supervisor Peters moved to approve the appropriation. Supervisor McNamara
seconded the motion. Motion approved.
cc: Jill Camilletti, Deputy Clerk IV
Christopher Bever, Director of Management and Budget
Rebecca Owens, Director of Finance
Page 2 of 2
Yes
No
Absent
Mr. Assaid
®
❑
❑
Mr. North
®
❑
❑
Mr. McNamara
®
❑
❑
Mr. Peters
®
❑
❑
Ms. Hooker
®
❑
❑
cc: Jill Camilletti, Deputy Clerk IV
Christopher Bever, Director of Management and Budget
Rebecca Owens, Director of Finance
Page 2 of 2
AT A REGULAR MEETING OF THE BOARD OF SUPERVISORS OF ROANOKE
COUNTY, VIRGINIA, HELD AT THE ROANOKE COUNTY ADMINISTRATION
CENTER ON TUESDAY, APRIL 24, 2018
RESOLUTION 042418-3 APPROVING AND CONCURRING IN CERTAIN
ITEMS SET FORTH ON THE BOARD OF SUPERVISORS AGENDA FOR
THIS DATE DESIGNATED AS ITEM H- CONSENT AGENDA
BE IT RESOLVED by the Board of Supervisors of Roanoke County, Virginia, as
follows:
That the certain section of the agenda of the Board of Supervisors for April 24,
2018, designated as Item H - Consent Agenda be, and hereby is, approved and concurred
in as to each item separately set forth in said section designated Items 1 through 2
inclusive, as follows:
1. Approval of minutes — February 27, 2018
2. Request to accept and allocate Technology Trust Funds in the amount of $3,671
to the Clerk of the Circuit Court from the Commonwealth of Virginia for fiscal
year 2018/2019
On motion of Supervisor Peters to adopt the resolution, seconded by Supervisor
McNamara, the motion was approved by the following recorded vote:
AYES: Supervisors Assaid, North, McNamara, Peters, Hooker
NAYS: None
Page 1 of 1
the Board