2018 08 02 WS Minutes, Budget MINUTES OF THE SPECIAL BUDGET WORK SESSION OF THE
CITY COUNCIL OF THE CITY OF BAYTOWN
AUGUST 2, 2018
The City Council of the City of Baytown, Texas met in a Special Budget Work Session on
August 2, 2018, at 6:23 P.M., in the Council Chamber of Baytown City Hall, 2401 Market
Street, Baytown, Texas with the following in attendance:
Laura Alvarado Council Member
Robert Hoskins Council Member
Charles Johnson Mayor Pro Tem
David Himsel Council Member
Chris Presley Council Member
Heather Betancourth Council Member
Stephen DonCarlos Mayor
Rick Davis City Manager
Ignacio Ramirez City Attorney
Leticia Brysch City Clerk
Mayor DonCarlos convened the August 2, 2018, City Council Special Budget Work Session
with a quorum present at 6:23 P.M., all members were present.
1. DISCUSSIONS
a. Discuss the City of Baytown Fiscal Year 2018-19 Proposed Budget.
City Manager Rick Davis presented the item and stated that he was honored and pleased to
present the proposed budget for the City of Baytown covering the fiscal year 2018 - 2019. He
noted that this document represents the collaborative work of elected officials, administration,
finance staff, and department directors and their teams. Beyond this, the budget proposal is a
reflection of our citizen's will as set forth in Baytown's community based strategic plan. Mr.
Davis noted that the theme of this year's budget proposal is continuing to enrich lives, a term or
statement that parallels the City's organizational purpose, "Together We Enrich Lives and Build
Community". This purpose statement lies at the very heart of why the organization exist; as a
reflection of what the staff has a passion for and what they firmly believe that this organization
can be the very best.
Mr. Davis noted that this proposal has its genesis with the formation of a five-year community
based strategic plan that annually considers both the progress made in the prior year in
implementing the strategic plan and any unmet needs going forward in, in order for the council
to form its goals for the upcoming fiscal year by delineating specific initiatives that it believes
critical to the realization of the ambitions of the strategic plan. These goals and initiatives with
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August 2,2018
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the assistance of all department directors are used to formulate an implementation plan which in
turn serves as a basis for the budget proposal.
Mr. Davis further noted that in summary, this year's budget proposal accomplishes some very
important things. First and foremost, it exhaustively addresses and implements the Council's
goals and associated implementation plan. This budget also includes per Council directive a one-
cent property tax reduction. It calls, nevertheless, for fee increases to sewer water, and sanitation
rates to cover critical capital needs and accommodate third-party provider cost increases. This
proposal augments the City's solvency by adding to its operating reserves and it supports the
completion of key capital projects.
Mr. Davis stated that the Council goals are based on the five directives or citizen priorities
identified in the strategic planning process and they are as follows:
• Community Reputation and Image will be impacted by supporting efforts to address
illegal and excessive signage; the aggressive addressing of the plague of litter in the
community, and the cleaning of the City's poles and overhead wire pollution. This
proposal supports year one of a campaign to better market Baytown's unique qualities to
those who would potentially invest in the community or make Baytown their home.
• Transportation and Mobility is strongly supported with the continued implementation of
strategies to facilitate safe and efficient traffic flow in and around Baytown, as well as
expanding the City's pedestrian bicycle pathways. This proposal calls for improved street
lighting and striping our major corridors, the aggressive addressing of the City's water
sewer and drainage systems and infrastructures, along with other infrastructures to ensure
the safe and effective delivery of basic and critical services.
• A High Quality of Life is important as citizens should feel like they do not have to travel
to enjoy a high quality of life. This proposal continues to support the development of a
hotel conference center on Bayland Island, as well as, the San Jacinto Marketplace, which
is slated to be open Christmas of 2020 which will provide a plethora of new and exciting
entertainment, shopping, and dining options. The conference center itself will not only
meet the needs of corporate friends, but also provide a suitable venue for the myriad of
civic events. This budget proposal also supports ongoing designs and plans associated
with future attractions at Pirate's Bay, in order for this valuable community amenity to
remain viable as a local and regional destination. Finally, our extension park and trail
system will continue to be supported by this proposal as we continue to maintain and
improve more than fifty parks and several miles of pedestrian-bicycle pathways.
• Quality of Neighborhoods is of paramount importance and this budget proposal supports
the City's ongoing efforts to ensure the safety and health of neighborhoods by
specifically addressing code enforcement and animal control. Staff wants to specifically
protect citizens by improving the effectiveness and humaneness of our animal control
program. Staff will continue to implement measures to enhance neighborhood beauty and
livability building on past success as recognized by the Governor's Community
Achievement Award and to continue to effectively addressed neighborhood needs. This
year's proposal calls for the implementation of a new citizen engagement initiative, as
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August 2,2018
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well as an enhanced public affairs program to receive the needed citizen input and
comments.
• Operational Excellence is something that citizens expect and deserve from a local
government. During Hurricane Harvey, many were humbled and amazed at the expertise
and dedication of the City's emergency responders and other departmental staff. This
organization truly came together as a team to protect lives and even property to the
greatest extent possible under very difficult circumstances. This proposal will support the
City's efforts to heighten the community's preparedness for the next emergency, in order.
to respond at an even higher level. It is also time to solidify and move forward with plans
to construct a new and modern police headquarters and fire administration building to
support the very best in emergency services. Staff will also improve parks and animal
control facilities to enable more efficient and effective service delivery.
Mr. Davis stated that as a last point, the proposal supports building on the successes that have
already been realized from reinventing the City's organizational culture. Central to this success
has been the staff's ability to unleash creativity and the talents of team members through the
City's Process Improvement and People Empowerment Academy, otherwise known as PIPE. Mr.
Davis noted that more than 300 staff members have already pPcreating artici ated in annual
savings in this first year of more than $300,000 and this number will grow exponentially in the
coming years.
Mr. Davis noted that it is a reality that a growing city requires people; therefore, this proposal
calls for additions to personnel that supports some very key initiatives; such as, the revamped
public affairs program, the facilities division, fire inspections and investigations, the animal
control program, community events and marketing, and transportation and community aesthetics.
Mr. Davis noted that all of the positions mentioned are integral to the City's capability to realize
the Council's goals and continuing to enrich the lives of those who call Baytown home.
Mr. Davis stated that his presentation was concluded and Finance Director Wade Nickerson
would take the Council through some of the numbers that compose the budget proposal.
Mr. Nickerson stated that he was starting with some high-level summaries based on the five
operating funds that are presented to the Council on a quarterly and ongoing basis. In the General
Fund, one item of the proposed budget is a revenue increase of 10.4%, which dollar-wise ends up
being 10 million dollars over the prior budget. However, the City's operating costs and expenses
are up by 10.9%, which equates to a 9.4 million dollar increase over the prior year budget. Mr.
Nickerson noted that the City has a lot of equipment improvement/replacement needs; such as
the replacement of vehicles and equipment that results in 3.72 million dollars. The last piece for
this fund is that staff actually transferred money from this fund for capital projects in the amount
of 3.16 million and 4.69 million for street projects, in order to get these much needed projects
accomplished.
Mr. Nickerson noted that the next fund to discuss relates to the Hotel/Motel Occupancy Tax
Fund, which consists of revenues collected from the overnight stays at local hotels. Mr.
Nickerson noted that revenues for this fund are up just a little bit over the prior budget; however,
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August 2,2018
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expenditures are also up with operating expenditures being substantially based on some special
contracts that are tied into the new conference center and those will come back down in future
years, which is sort of a one-time expense. Mr. Nickerson stated that the last piece that is paid
for out of this fund is about 74% of the expenditures and is related hotel/convention center
funding. Staff has designated an estimated 4 to 4.5 million dollars in addition to the amount
designated for the project's contract oversight.
As it relates to the Aquatics Fund, Mr. Nickerson noted that once again staff is predicting that the
revenues will be flat over the prior budget year. The water par is having a good year so far, it has
been very hot and that works well, so revenues will probably end up a little ahead of the
budgeted amount. Mr. Nickerson noted that the total expenditures are coming in at 4.4 million,
and staff is planning for the 4.4 million, which includes capital, some planning and design work
on some new attractions for the water park.
Mr. Nickerson noted that as it relates to the Water and Sewer Fund, again the revenues have
increased by about $718,000 over the prior budget. This increase does implement, as proposed, a
4% fund increase in rates. He noted that operating expenditures are up about 1.69 million, which
is equal to a 6.2% increase. Mr. Nickerson noted that staff is also increasing the operating
reserves based on projections for the end of the current year, which are being increased by an
estimated $274,000.
Mr. Nickerson noted that the last fund to discuss is the Sanitation Fund; staff is predicting that
revenue will be up about $890,000; this is based on the increased collection rates that are going
to be charged; which are about a 15% increase. As it relates to operating expenditures, these are
up about 12.1% and he noted that this is the second year of the Waste Management contract
increase, which is what is driving the increase in expenditures, but in addition to that, will also
require a rate increase, which is driving the increase in revenues. Mr. Nickerson stated that
everything folds together very nicely in this fund.
Mr. Nickerson noted that this completed his presentation on the proposed budget and was open
to answering any of the Council's questions.
Council Member Alvarado inquired about the monies budgeted for HIDTA on page 251; under
the miscellaneous tab. Mayor DonCarlos noted that this line item is not a City budget or
program. He noted that the City received and oversees a Congressional grant to fund HIDTA,
which focuses on combating drug activities in the area, so the City does receive some benefits
from this program, but it is not necessarily a part of the City's regular budget. Police Chief Keith
Dougherty noted that the City does benefit from HIDTA as the Police Department is allowed to
use and have some of their resources. He further noted that the City uses its own resources for
dealing with local narcotics enforcement and similar activities. Chief Dougherty noted that
basically the administrators of these funds is the HIDTA group, who give their own staffing and
activities, but the Baytown Police Department does partner with them on some special activities,
but for the most part the City handles its own enforcement with its own funds and personnel.
Mr. Nickerson noted that this line item is not new money, and in fact has been in place since the
1980's, so it has been around for a long time. He noted that the City does not track this money
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August 2,2018
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nor does it get to keep any unexpended funds; this is just a year-by-year type of allocation for us
in the form of a federal grant.
Council Member Johnson stated that he had actually asked some questions about firefighter
training field, as he did not see any money budgeted, but staff did explain that this is in the Fire
Control budget earlier in the week. Mr. Johnson also noted that he had asked about the sidewalks
that are being extended down to Garth Road and he received his answer on this item earlier
Council Member Betancourth stated that on page 32 of the budget, there is a 15% increase to
cover the second year of the Waste Management contract, was this something that the Council
knew last year when the new contract was approved. Mayor DonCarlos noted that the Council
was aware of the increase and stated that hereafter any increases are going to be a CPI only.
Council Member Betancourth then noted that on page 52 of the budget, there are 2 million
dollars budgeted for the animal shelter expansion, and after the animal shelter presentation from
the last Work Session, she believed the amount for Phase One was more like 2.6 million, so is
there a different plan than what was presented. Mr. Davis stated that a final decision has not
been made on how to move forward on this item, and he believed that the next step is to have a
more detailed discussion about the Council's desires in relation to investing in that facility.
Council certainly wanted to know the options and needs of the facility by commissioning the
study and then have staff come back for a more detailed discussion about what Council is willing
to invest. The 2 million is far from being a scientific number and is at this time more of a
placeholder for what the Council feels can be invested in the next year. Mr. Davis further noted
that 2 million dollars is pretty close to what staff believes the City can afford in the coming year,
but ultimately it is the Council's decision on what that solid number will be for this facility.
Mr. Nickerson noted that the consultant stated in relation to Phase 1 of the Animal Shelter and
Adoption Facility ranged anywhere from 2.6 to 12.8 million, so it is really up to the Council to
decide what is the amount that can be spent on Phase 1, and that number will be taken back to
the consultant to identify what can be done within that budget. So, if Council only wants to
spend "x" the consultant will build a plan based on that amount. Mr. Nickerson further noted
that even if the Council decides to spend more than the currently allocated 2 million, the
expenditure would happen later in the year, which would allow for more flexibility in identifying
funding. Council Member Betancourth stated that the survey data presented indicated that
people were more interested in a middle of the road funding for this project, and not a Cadillac
level funding, so she was okay with moving forward.
Council Member Betancourth then asked whether the General Debt Service Fund was the
amount that the City is paying towards its debt and asked if what is noted is 5.9% less towards
our debt this year. Mr. Nickerson noted that the City' debt does fluctuate a little bit every year.
But staff tries to keep it as close to the same level as possible, but there is some fluctuation.
Council Member Betancourth asked if the City was paying less in debt service because it had
paid off a bond. Mr. Nickerson stated that her assessment was correct.
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Council Member Betancourth noted that in her own words, if she is paying a hundred bucks a
month towards her credit card bill, and she finally gets one credit card paid off, she will no
longer have to continue to pay a hundred bucks a month for the rest of the credit cards, and her
payment would decrease to 50 bucks a month. Mr. Nickerson stated that he would use her
analogy, and yes; the City paid off a credit card, but opened a new one. He further noted that the
City does attempt to pay off debt when it can, in order to get lower interest rates and thus pay
things off sooner; however, the City is not in a position to do so at this time, as the debt is locked
in on rates, and it does not make sense to pay them off early.
Deputy City Manager Ron Bottoms noted that in 2028 the debt service falls significantly as the
City will finish paying off the 2007 bonds.
Council Member Betancourth asked what was the revenue reduction resulting from the one cent
property tax rate reduction. Mr. Nickerson noted that it is right at 1.1 million dollars, and that it
is made up of two pieces; 1) the reduction of property tax revenue and 2) a revenue decrease in
the IDA revenue because they are also tied to the tax rate.
Council Member Betancourth stated that if the property tax rate is broken up into two, the INS
and the ONM, it affects both, will the City end up losing 1.1 million from both or just from the
ONM. Mr. Nickerson noted that the revenue would end up impacting the ONM as the City is
required to make debt maintenance, so it will only affect the operational side.
Council Member Betancourth noted that she really enjoyed this year's budget, particularly, the
details listed in the capital projects tab, which was missing from last year's budget.
Council Member Betancourth stated that what would be the shortfall if the Council did not
increase the sewer fund by 4%, and recommended that the sewer rate not be increased and allow
for the General Fund to cover whatever amount was needed to make the Water and Sewer Fund
whole. She noted that she did not agree with reducing property taxes by one cent and increasing
the sewer rate by 4%; as any savings would cancel out. Mr. Nickerson noted that the increase in
the sewer rate is necessary to cover the costs associated with the Capital projects that must be
completed per TCEQ and state law for the newly annexed areas. He noted that the rate increase
will cover the debt service for the monies needed to complete these projects. If there is no rate
increase, the City cannot issue the debt and as such, the projects cannot be completed, which
would lead to other issues with TCEQ and the annexed areas. Mr. Nickerson further noted that
the debt amount is about 19.1 million with an annual debt service of 1.3 — 1.4 million, and the
rate increase is set to cover the costs of the debt service.
Mr. Bottoms noted that the 4% increase covers the payments that are necessary to issue 20
million dollars' worth of debt for sewer repairs, with the debt service being about 1.2 million
dollars a year.
Mr. Davis stated that if the Council does not approve the rate increase, the City would obviously
not issue the debt in those circumstances, and therefore would not undertake the projects, in
order to not bring Council a shortfall in the budget. However, the City is required to complete
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the capital projects. Council Member Betancourth asked that the staff look for the monies to
cover the debt service from some other fund and was okay with the General Fund covering said
1.2 million.
Mr. Nickerson noted that the City used to transfer money from the Water and Sewer Fund to the
General Fund as an administrative fee, the City has eliminated this 2 million dollar transfer in
order to give this fund more monies to complete the necessary capital projects. Staff has tried to
look at many different options to get the City in a position where it can complete these much
needed projects, and the rate increase is a part of that endeavor.
Mr. Davis noted that the sewer rate increase is only 4% because the City is already utilizing
General Fund money to help this fund. He noted that generally, he would always discourage
utilizing General Fund money to support an enterprise fund that should be self-sustaining. Mr.
Davis stated that the citizens depend on staff to operate this fund separately from the General
Fund; however, the costs assessing with SSOI projects, the annexation projects and other system
improvements combined, represent a unique era for this enterprise. In other words, if the City
can get through this period and aggressively address these projects, there will not be a solvency
issue for this fund in the future. Also, to increase a fee that one day will be more than enough to
cover those costs would not be advisable either; therefore, it makes sense to mix into the
equation with support from the General Fund, which we are doing, but not to the extent that it
can cover an addition 1.2 million for the debt service payment.
Mr. Davis noted that as far as the water and sewer side of this community, the City has basically
been prepared for the influx from all this expansion more so than any other community in the
area, and the City has benefited greatly because of that planning. People come to Baytown
because of its water and the fact that it can treat water in the sewer system where other
communities that have been trying to get these businesses in their community, cannot do it.
Mr. Nickerson noted as a point of clarification that if the City uses too much money from the
General Fund to subsidize the Water and Sewer Enterprise Fund, it can become a financial and
legal issue depending on the amounts.
Council Member Hoskins stated that it has been many years where the City has raised sewer
rates without giving a tax cut, and while he could certainly see Council Member Betancourth's
point, he did not particularly view this as a shell game, but these capital projects are something
that the City is going to have face, in order to deal with the City's serious inflow infiltration
problems. Council Member Hoskins stated that the City has an agreement with TCEQ that these
issues are going to be fixed and we can try and move money around, but the bottom line is the
City needs 20 million dollars to fix it.
Mayor DonCarlos noted that he could absolutely see everyone's points, and noted that he
suspected that regardless of whether or not the property tax is decreased, the City would still be
looking at a sewer rate increase; with the amount of problems that have to be fixed, it just would.
He further noted that it is amazingly expensive to fix this infrastructure problem, but the City has
no choice. The City has to quit overflowing manholes, particularly in light of recent rain
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August 2,2018
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experiences that this community has experienced, so it is just a matter of how the Council wants
to pay for it and not an issue whether Council wants to do it or not because it is going to be done.
The Council discussed with the staff ways of bringing in additional revenues to help the Water
and Sewer Enterprise Funds; such as increases to impact fees. The Council discussed the
possibility of reducing the tax rate further as revenues continue to grow in subsequent years as
the City's property tax was still high in comparison to other cities.
Mr. Davis noted that the City's tax rate is still high, and even if the rate is reduced, there is only
so much that can be done if the City's median household value remains so low, which is why it is
so important to continue to put the City in a position that will attract the type of homes that will
help increase said values and help set the City up for future successes.
Mr. Davis stated that the staff has been as creative as possible in bringing a multi-dimensional
solution to the funding of the capital projects. The City has done pay as you go projects for the
last three years and while the City has a rate study completed that recommended significant
water and sewer rates increases, the City intentionally did not raise rates because staff wanted to
do as much of the projects as possible without raising rates. Unfortunately, the last annexations
put the City in a bind and the City must respond accordingly.
The Council discussed the impact of the legislature's senate bill and its impact to the City's
ability to complete involuntary annexations and the City's strategies moving forward to deal with
this new law, along with any additional legislation putting a revenue cap on local governments.
Mr. Nickerson stated that when Mr. Davis came on board as city manager, he requested that the
staff create a fiscal sustainability plan. He noted that the Finance Department has done that and
noted that the whole point of the plan is to create a plan on how to respond if the City lost 10%
revenue, 20%, 30%, and to answer questions like: at what point in time could the City no longer
spend on capital; when would personnel be affected; what services could be eliminated. This
plan is revisited and is a living and ever changing document; the most recent review happened
after Hurricane Harvey. So, the staff has a template in place to help the Council and staff to have
the necessary discussions in order to deal with significant revenue losses. To this point Mr.
Davis noted that generally speaking, for most municipalities, when it passes the tenth percentile
in terms of revenue loss, it will begin to redraw its services and/or city organization in terms of
the elimination of programs and/or people. It does not take a lot.
Mr. Davis also noted that the loss of revenues impacts all across the board to all departments as
no one department functions independent of all others; such as how an emergency personnel
relies on non-emergency communications staff, and ITS staff for their equipment, etc., and not
only that, non-emergency staff represents a smaller portion of the City's budget than emergency
services. So, this goes to the fact that it is hard to get fire trucks to a scene when there are no
viable roadways to get it to its destination or the support system to administer these departments
that include HR, Finance, Legal and other. Therefore, the City's plan, should this come up,
would consider not only the City's strategic plan, but also, will include adjustments to the budget
after completing a full review of programs and their related staff.
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Mr. Nickerson noted that this is just one of the reasons that staff is continually trying to increase
the City's fund reserves, in order to allow the City some time through its reserve to continue
operations for a few months or a year or however long before it finds a long term solution to
whatever the issue at hand may be; hence, why the finance staff is always encouraging Council
to increase the fund balance when possible.
Council Member Presley asked how monies were transferred from one fund to another for the
purchase of capital replacement, specifically fund 350 on Page 171. Mr. Nickerson noted in
order to fund the needed equipment in this fund; staff generally moves money from the General
Fund to the Capital Replacement Fund; i.e. fund 350. Once the equipment has been paid for, the
department in question is given a payback period to reimburse the General Fund, and once that
amount has been paid back, there are no more payments. The hope is that this fund will become
standalone and staff will no longer have to borrow money from the General fund to buy heavy
equipment and technology to meet the City's service needs.
Council Member Hoskins inquired about the traffic signal at Stonehedge and Bush Road. City
Engineer Jose Pastrana noted that said intersection is in next year's budget and should be
completed by Spring 2019.
Council Member Johnson inquired if there was a way that the staff could identify those items
funded in the budget specific to each council district, in order to help them find those items
requested for their districts; such as the funding of sidewalks on Garth Road. Council Member
Betancourth noted that it was a great idea to see project listed in the budget by districts.
The Council and staff discussed various ways to communicate projects and funding of specific
items by district.
Mr. Davis stated that staff is completely focused on achieving the plan that Council and staff
have formulated together and outside of the City's scorecard that tracks staff's progress on all
projects, he encourages as council members to handle any questions or request on a one-on-one
basis. Staff will do its utmost to get all of council's most pressing requests into the budget and
from there, keep tracking their progress through the City's new project tracking software,
Clearpoint software. Mr. Davis further noted that these are exciting times and he looks forward
to his one-on-one discussions with the individual council members, and welcomed their
questions and concerns on any topic or on any part of the implementation plan.
Council Member Presley requested clarification on the increases to the Administration budget on
page 79, specifically dealing with the new positions in public affairs: the Public Affairs Director
for an estimated $150,000 and a Neighborhood Outreach and Volunteer Coordinator for an
estimated $90,000. Council Member Presley stated that he had some concerns with the addition
of two new positions people for a quarter of a million dollars.
Mr. Davis noted that the monies noted in the budget are inclusive of salary and benefits, and
noted that these positions are a part of the City's citizen and neighborhood engagement, which is
a part of the City's public affairs division. Mr. Davis further noted that the position left vacant
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August 2,2018
Page 10 of 10
by Ms. Patti Jett, is no longer at a director position, but is instead at a manager level, while the
Neighborhood Outreach and Volunteer Coordinator position will not only be the coordinating,
pooling, making maximum use of the City's volunteer infrastructure, but will also be doing
neighborhood outreach and coordination.
The Council requested more information regarding these two positions, the type of work that
they would be doing and the financial impact on the budget.
Mr. Davis stated that if there are no more questions regarding the budget, he would give them an
overview of the next steps related to the budget. He noted that staff has added an agenda item to
each subsequent work session agenda in order to continue the budget discussion until such time
as the Council adopts the budget. He noted that the Council will hold a public hearing on the
budget on August 9th and after that Council can take action on whether or not to adopt the
budget.
Mr. Davis further noted that management will begin meeting with the Council in November to
begin to talk about the issues and the things that the Council believes are needed and that will
help staff better compose an implementation plan for the next budget year. Mr. Davis reiterated
that it is the staff's utmost desire and ambition to deliver the Council a document that will meet
the Council's vision and ambitions.
Mayor DonCarlos thanked all of the staff for putting in the time and effort in the preparation of
the budget. He noted that a budget of this size is pretty complicated with a lot of moving parts,
but overall he was very pleased with a lot of the things he saw today. Mayor DonCarlos further
stated that the Council has plenty of time to adopt the budget and requested that the council
members take the time to review the budget and ask any further questions. He wanted everyone
to feel comfortable with the budget.
Mayor DonCarlos reiterated his gratitude to the staff, Administration, and all of the Departments,
for all the work that goes into this process every year.
2. ADJOURN
With there being no further business to discuss, Mayor DonCarlos adjourned the August 2, 2018,
City Council Special Budget Work Session at 7:47 P.M.
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