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Staff Report
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Report To: General Government Committee
Date of Meeting: February 1, 2021 Report Number: FSD-005-21
Submitted By: Trevor Pinn, Director of Financial Services
Reviewed By: Andrew C. Allison, CAO Resolution#:
File Number: By-law Number:
Report Subject: 2021 Operating and Capital Budgets
Recommendations:
1. That Report FSD-005-21 be received;
2. That Council approve the 2021 Operating and Capital budgets, including “external
agencies” as outlined in the 2021 Draft Budget Book, at an estimated tax levy impact
of 2.50 per cent, exclusive of tax policy impacts, as directed in FSD-005-21;
3. That Council approves the 2021 budgets for the Bowmanville BIA (Attachment #1),
Newcastle BIA (Attachment #2), and Orono District BIA (Attachment #3);
4. That the 2021 Draft Budget Book be amended to reflect the required tax levy request
from the three business improvement areas, and that the three budgets be
approved;
5. That the 2021 Draft Budget Book be amended to increase the Committee of
Adjustment salaries and benefits by $3,153.96 to reflect four persons on the
Committee rather than one;
6. That the 2021 Draft Budget Book be amended to add a grant in the amount of
$115,000 to Clarington Hospice, to be funded from the Tax Rate Stabilization
Reserve Fund, to offset the local portion of development charges;
7. That the 2021 Draft Budget Book be amended to remove $40,000 from the
Municipal Election budget as per Staff’s recommendation in Report LGS-006-21
($31,000 from postage, $5,000 from advertising expenses and $4,000 from printi ng);
8. That reserve and reserve fund contributions and new reserve/reserve funds be
approved as shown in the 2021 Draft Budget Book ;
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9. That the financing of capital projects, as outlined in the 2021 Draft Budget Book, be
approved;
10. That any cash flow shortfall in the Development Charges Reserve Funds be interim
financed from the Municipal Capital Works Reserve Fund and General Municipal
Reserve Fund, to be repaid with interest, as cash flow permits;
11. That Report FSD-005-21 be adopted by resolution in accordance with provisions of
Ontario Regulation 284/09 of the Municipal Act, 2001;
12. That the appropriate by-laws to levy the 2021 tax requirement for Municipal,
Regional, and Education purposes be forwarded to Council for approval, once final
tax policy information is available; and
13. That all interested parties listed in Report FSD-005-21 and any delegations be
advised of Council’s decision.
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Report Overview
The purpose of this report is to provide necessary information to Council in order to approve
the 2021 Capital and Operating Budgets. The report includes several important components
and the Budget Book provides specific details. There are significant capital considerations
for 2021 that further enhance the Municipality’s capital infrastructure. The Budget is
continuing to carry out the principles and objectives of these important Council priorities .
1. Background
2021 Draft budget and levy impact
1.1 This year’s “Clarington Budget 2021: A Path Forward” was released to Council on
January 15, 2021 and the Municipality’s website the following week. This year’s budget
book takes on the same format as the 2020 budget, continuing our movement towards
creating a budget document that is easier to understand and clear for stakeholders.
1.2 The budget looks to prioritize services and resources, as well as continuing to invest in
our capital assets, as the Municipality moves forward in 2021 in the COVID-19
Pandemic. The budget assumes a reduction of service capacity and demand in certain
services, primarily Community Services, as a direct result of the public health
restrictions that are in place. While we are anticipating a recovery in 2021, it is unclear
when certain services will return to their pre-pandemic levels.
1.3 The budget has consolidated all the accounts to reflect the current organizational
structure of the Municipality following the approved corporate reorganization in 2020.
Historical actual and budget information in the budget book has been realigned to the
2021 general ledger areas. Historical accounting information has not been modified; this
is a presentational change only.
1.4 In September 2020, Council directed Staff to bring forth a budget for 2021 with a target
municipal levy increase of 3.55%. Staff worked diligently to meet that target. The draft
budget, including proposed new staffing, increased reserve fund transfers and
maintaining service levels was reached with a 2.50% municipal levy increase. This
represents approximately $39 to the average residential taxpayer.
1.5 The average residential property assessment for 2021 is approximately $394,000 (2020
- $390,700). A 1.0% increase in the tax levy would be approximately $15.17 annually on
the property tax bill on the average assessment. As a result of the proposed budget the
average municipal increase is $38.50 per year. It should be noted that in 2021 there
was no reassessment of properties, the increase in the average assessment would be
related to the value of new growth.
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1.6 A 1% increase in the levy translates into approximately $627,500 in additional revenue
to the Municipality.
1.7 The Region of Durham’s Budget will be presented to Regional Council later this winter.
It is anticipated that the impact to the Clarington taxpayer will be lower than the average
Durham resident as the assessment base in the other municipalities is higher than in
Clarington. It is anticipated that approximately 50% of the total property tax bill will still
be related to the Region of Durham; however, at this time it cannot be confirmed.
Items for Council Consideration
1.8 The budget book included a list of items for consideration on page 26. These items may
have been deferred by Staff in order to meet the 3.55% target or brought forth by
members of Council and the public for consideration.
1.9 Items for consideration include approximately $372,540 in operating costs and
$2,532,300 in capital costs. If all these items were to be included there could be an
additional 4.63% to the tax levy; however, this could be mitigated through use of
development charges (where allowed) or reserve and reserve funds (where feasible).
1.10 An item not included on this list or in the budget was a capital request from Emergency
and Fire Services. To be added to the “B List” is a request for $35,000 for an Extractor
and Dryer for Station 3. These are included in other stations throughout the Municipality.
1.11 Included on this list is an item which has subsequently been approved; however , the
funding for those items has not been determined. This includes the provision of a grant
to Clarington Hospice to offset their local development charges (approximately
$115,000).
1.12 Council also provided pre-budget approval on January 18, 2021 to hire an outside
planning consultant for options regarding recreational vehicle storage in Clarington. This
item requires an increase to the Planning and Development Services consultant
expense account as it was not previously included in their 2021 submission. This item
was included in the determination of the levy and will be added to the appropriate
expense account upon ratification of the budget.
2. Tax Rate Stabilization
2.1 Historically, Clarington has drawn on our Rate Stabilization Reserve Fund
approximately $800,000 per year. In 2019 this was reduced by $200,0 00 with specific
draws being added for forestry. In 2020, $600,000 was drawn with additional draws for
capital projects.
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2.2 During 2020, as a result of the COVID-19 pandemic, Council approved $1.0 million to
be used for a tax rebate program. This funding was not required and per Council
resolution is available for the COVID-19 CIP.
2.3 The 2021 Draft Budget does not include any draw from our Rate Stabilization Reserve
Fund, this is in part a result of funding received from the Province of Ontario for use in
2021 to offset implications from COVID-19.
3. Tax Policy Changes
Current Policy Implications
3.1 A long-term strategic tax policy plan was initially approved in 2002 by the Region of
Durham (who has legislative authority over tax policy), that may have an impact on final
tax rates. The 2021 update is anticipated was presented to Regional Finance and
Administration Committee in February 2021. Any tax ratio changes impact upon the
relative share of the total taxes that each property class pays.
3.2 In 2020, the Region’s tax policy report included a recommendation not to implement a
reduced tax rate for the first $50,000 of assessment on small-scale value-added
commercial activities on farms that was announced by the Province of Ontario in 2018.
There is a limited impact to taxpayers (in 2020 only seven properties in all of Durham
Region would qualify) while the administrative costs would be significant.
3.3 In 2020, there was a request from the Town of Whitby to match support for a heritage
property tax rebate. The Region only is allowed to create a program in a municipality
that already has a program; therefore, this would only apply in Ajax (two properties),
Whitby (30 properties) and Oshawa (8 properties). It was recommended that no
program be established as it would go against the Region’s objective of treating similar
properties in a similar manner throughout the whole region.
Potential Future Policy Implications
3.4 On November 5, 2020 the Province of Ontario released the Provincial Budget 2020 -
Ontario’s Action Plan: Protect, Support, Recover. This budget included several
measures to respond to the COVID-19 pandemic including reductions to Business
Education Taxes (BET) paid by commercial and industrial taxpayers, the creation of an
optional property subclass for small business properties, new tools for redevelopment
and speculative sales, confirmation of the postponement of the 2021 property
reassessment and other initiatives
3.5 Clarington is affected by tax policy decisions made on the education side by the
Province of Ontario. This stems from municipalities retaining the education portion of
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eligible payment in lieu (PIL) properties such as Ontario Power Generation. In the 2020
budget, the Province has reduced the Business Education Tax (BET) that is paid by
commercial and industrial taxpayers. This does not impact the Municipality for the
majority of taxpayers (as we collect the BET on behalf of the Province and remit to the
school boards); however, as there is a portion that we retain this could reduce our
payments-in-lieu-of-taxes (PILS) that we keep. The Province has indicated that for 2021
the BET rate will remain the same for PILS; however Federal properties typically pay
taxes based on the commercial rates. As Darlington is owned by OPG it is likely that
they will follow the Province’s direction to pay the BET at the former rate .
3.6 The Province has indicated that there will be the ability to create an optional sub-class
for small businesses. This may allow municipalities to target financial support and tax
policy specifically to small businesses. As at January 21, 2021, the Province has not
released any regulations or guidance on how this sub -class or potential financial support
will occur. It should be noted that property tax policy is the responsibility of the Region of
Durham. Staff are continuing to work with the Region to determine the implications of
this policy decision.
3.7 The Province has not released guidance on its tools for redevelopment and speculative
sales at the time of this writing.
3.8 The postponement of the 2021 property reassessment has resulted in no market growth
for properties in 2021. As the last assessment cycle was based on a valuation date of
January 1, 2016 all taxpayers are currently paying taxes based on the assessed value
of their homes five years ago. When the future reassessment occurs , there will likely be
shifts of the tax burden throughout the Municipality depending on the market values and
the phase-in regime applied. At this time, we do not know when the next assessment
date will be.
4. Staffing Requests
4.1 Included in the proposed budget are the following requests for new staff:
a. Convert contract Corporate Policy Analyst to full-time in the Office of the CAO;
b. Convert contract Climate Change Coordinator to a full-time Energy and Climate
Change Response Coordinator in Planning and Development Services;
c. Create a contract Project Manager position in the Community Planning Branch of
Planning and Development Services. This position is funded in part by contributions
from developers;
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d. Add a full-time Principal Planner in the Development Review Branch of Planning
and Development Services;
e. Add a full-time Development Review Technician in the Infrastructure Division of
Public Works;
f. Create a full-time Operations Equipment Trainer position in the Operations Division
of Public Works; and
g. Create a full-time Network Security Analyst position in the Information Services (IT)
Division of Financial Services.
4.2 In the Draft Budget Book’s executive summary, the conversion of the Corporate Policy
Analyst to full-time was inadvertently missed. The position and justification was included
in the section dedicated to the Office of the CAO and is included in the proposed
budget.
4.3 Legislative Services, Community Services, and Emergency and Fire Services are not
requesting additional permanent staffing in 2021.
4.4 The specific rationale provided by the departments in support of these requests are set
out in the Draft Budget Book.
5. Operating Budget Commentary
5.1 The 2021 Draft Budget Book provides summary information for all the changes in the
operating departments and sub-departments. This information was provided to ensure
that Council was aware of the projected change from 2020. The book also is reflective
of the changes in accounts resulting from the recent corporate reorganization.
5.2 Significant changes to operating includes the impact on the Community Services
operations resulting from anticipated service restrictions from COVID-19. It is hoped that
many of the service reductions will return to normal in 2022.
5.3 We have reviewed revenue accounts and adjusted to better reflect what the Municipality
estimates to be achievable. This includes an increase to investment income to better
reflect the interest earned on our investments, but also includes decreases in certain
programs or Planning and Development Services revenues which are anticipated to
result in more revenue.
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6. Capital Budget Commentary
6.1 The total capital budget investment of $23,887,348 utilizes approximately $4.6 million of
development charges, $9.9 million of reserve funds, $446,900 from reserves and
$697,000 from external financing sources (grants).
6.2 Tax levy support in 2021 to the capital budget is $8,289,461 which is $5,000 higher than
the 2020 tax levy support. This is an increase of 0.06 per cent in the tax levy support to
the capital budget; however, a $900,000 increase in contribution to the Operations
Equipment Reserve Fund is included which otherwise would have been a tax levy
capital item for replacement vehicles.
6.3 The capital budget recommendations are incorporated in the Draft Budget Book, under
the section “Capital Budget” starting on page 120. A description of the project is
included for each capital budget item.
7. Debt Status
7.1 Current projected annual debt repayment obligations for 2021 Budget purposes total
$2,139,350 (2020 - $2,688,395) predominantly funded from development charges.
Existing debentures include those issued for: Bowmanville Indoor Soccer, Garnet B.
Rickard Recreation Complex (final payment is in 2021), Community Care Durham
space, Green Road grade separation, Courtice branch library, the Diane Hamre
Recreation Complex, as well as retrofits for the Municipal Administration Centre and
Pad A of the Garnet B. Rickard Recreation Complex.
7.2 In 2018, two debenture projects were funded internally and will be repaid through
transfers between Reserve Funds. The Garnet B. Rickard Recreation Complex parking
lot refurbishment will be repaid through a portion of the annual contribution to the
Parking Lot Rehabilitation Reserve Fund. The LED light retrofit will be repaid through
savings in electricity and maintenance costs for streetlights.
7.3 In the 2020 Budget, Council approved $4.2 million in debentures related to the design
and construction of the South Bowmanville Recreation Centre. The project did not
receive funding in 2020, resulting in a delay in the project as staff review financing
options. Staff are currently exploring Private-Public-Partnerships (P3s) to determine
feasibility. There are no funds in the 2021 budget specific to the South Bowmanville
Recreation Centre.
8. Municipal Grant and Sponsorship Programs
8.1 The Municipal Grant Program and the Municipal Sponsorship Program have undergone
a revision in 2021, as approved by Council in the fall of 2020. The budget presented this
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this report includes $60,000 for the grant program and $35,000 for the sponsorship
program.
8.2 As hall boards and horticultural societies are ineligible for the new grant program,
funding for these boards has been separately budgeted. There is $37,500 remaining for
other grant applicants from the budgeted $60,000. The “Unbudgeted Needs” list, the “B
list” includes requests from the hall boards in excess of the budgeted amounts.
8.3 Each of the seven hall boards that was formerly eligible under the grant program has
been budgeted an allocation of $3,000. Each of the three horticultural societies has
been budgeted $500.
8.4 Included within the “Unbudgeted Needs” list is a request for an additional $25,000 in
funding for the grant program. This will move the program towards its goal of $1/resident
for community support. Given the financial pressures that many non -profit organizations
are facing due to COVID-19 this may be something that Council wishes to consider.
9. Reserve and Reserve Fund Contributions
9.1 Consistent with past practice, increases in reserve and reserve fund contributions are at
times deemed appropriate to bolster balances in depleting reserve funds or to begin to
put aside funds for an identified need. This is an important part of our asset
management strategies. For 2021, there are several increases to the contributions
which have been recommended in the Draft Budget Book including:
Reserve Fund Amount of Increase
Clerk’s Fleet Reserve Fund $5,000
Animal Services Capital Reserve Fund 3,000
Future Staffing Reserve Fund (increase to bring to $50,000 22,775
Municipal Capital Works Reserve Fund 15,000
Fire Equipment Reserve Fund 100,000
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Reserve Fund Amount of Increase
Continuous Improvement Reserve Fund (50,000)
Facilities / Park Maintenance Reserve Fund (100,000)
Operations Equipment Reserve Fund 900,000
Community Services Capital Reserve Fund 75,000
Community Services Building Refurbishment Reserve Fund 150,000
Roads Capital Reserve Fund 130,000
10. External Agencies
10.1 The 2021 budget includes requests from external agencies, including the Clarington
Public Library and Museums, Visual Arts Centre, Bowmanville Older Adults Association,
Community Care Durham, Newcastle Community Hall and Grandview Children’s
Centre.
10.2 The 2021 budget guidelines adopted by Council provided for a 1.8 per cent increase
cap for external agencies to be included in the budget. Two organizations have
requested funding in excess of this guideline. If Council wishes to provide the additional
funding to the Newcastle Community Hall and Community Care Durham these requests
are included in the Unbudgeted Needs (“B list”) and may be separately moved.
10.3 Both the Newcastle Community Hall and Community Care Durham are asking for
additional funds to offset impacts from the COVID-19 pandemic. Newcastle Community
Hall is anticipating significant revenue pressures as a result of cancelled rentals and
capacity limitations. Community Care Durham has seen increased demand for service
and corresponding service delivery cost increases to ada pt to the pandemic.
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11. 2021 Accrual Based Budget for PSAB per Ontario Regulation
284/09
11.1 Public Sector Accounting Board annual reporting requirements for municipal Budgets
require that certain accrual-based items be reported to Council in conjunction with the
Budget for 2011 onwards.
11.2 Accrual based expenses that are excluded from the 2021 tax-based budget include
post-employment benefits and amortization of capital assets. Other items to transfer to a
PSAB Budget include tangible capital asset acquisitions and accounting treatment of
debt principal payments.
11.3 There is no immediate financial impact of these PSAB additions or reductions since the
tax-based budget approves necessary funds to provide municipal services for 2019, but
there are longer term implications.
11.4 The estimated change to the accumulated surplus at the end of 2019 resulting f rom the
above items is as follows:
PSAB Additions to the 2021 Budget
Adjustment 2021 Dollar Amount
Tangible capital asset amortization $20,677,662
Post-employment benefit estimate 984,660
Total PSAB Additions $21,662,322
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PSAB Reductions to the 2021 Budget
Adjustment 2021 Dollar Amount
Tangible capital asset acquisitions $(23,887,348)
Debt principal payments (1,858,842)
Total PSAB Reductions $(25,746,190)
Total PSAB Impact
Adjustment 2021 Dollar Amount
(Increase) / Decrease in Accumulated Surplus ($4,083,868)
12. Concurrence
Not Applicable.
13. Conclusion
It is respectfully recommended that this report and the accompanying documents are
intended to provide Council with the information necessary to make strategic decisions
and ultimately adopt a budget for the 2021 fiscal year.
Staff Contact: Trevor Pinn, Director of Financial Services, 905-623-3379 ext. 2602,
tpinn@clarington.net
Attachments:
Attachment 1 – 2021 Historic Downtown Bowmanville BIA Budget
Attachment 2 – 2021 Newcastle BIA Budget
Attachment 3 – 2021 Orono District BIA Budget
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Interested Parties:
The following interested parties will be notified of Council's decision:
a. Community Care Durham
b. The Clarington Public Library and Museums
c. Bowmanville Older Adults Association
d. John Howard Society of Durham
e. Newcastle Community Hall
f. Visual Arts Centre
g. Grandview Children Centre
Attachment 1 to FSD-005-21
Historic Downtown Bowmanville Business Centre (BIA)
January 22, 2021
APPENDIX A
PROPOSED
2021
Administration $78,200.00
Events $70,000.00
Special Promotions $2,951.00
Streetscape $27,700.00
Capital Works $20,300.00
Contingency Fund $5,000.00
Website $26,000.00
Office Expenses $2,000.00
Total Budget $232,151.00
less surplus -$64,712.00
NET TOTAL = LEVY $167,439.00
The following budget was proposed for 2021 by the Newcastle
Downtown Business Improvement Association's Board of Directors
for approval by the Membership at the AGM January 26, 2021
Newcastle DBIA Proposed Budget for 2021
Downtown Safety & Décor 23,000
Events 5,000
Advertising 10,000
Admin/Contingency 2,000
Total Expenses 40,000
Attachment 2 to FSD-005-21
Orono DBIA Budget
2020 2021 Proposed
Income
Municipal Levy 6000.00 6000.00
Donations/Sponsorship Santa Claus Parade 0 7,000.00
Antique Festival – vendor payments 0 3,000.00
More Than a Car Show – vendors, registrations 0 4500.00
OPG – event sponsorship 0 1,000.00
*Capstone Grant – (Benches 2020)10, 830.00 2,000.00
Municipality – Christmas street dec (Rec’d 12/2019) 22,140.55 -
Total 38,970.55 23,500.00
Expenses
Christmas Main Street Star lights 10,484.37 -
Advertising & Printing 1960.00 6,200.00
Website Design and Development 2850.00 -
Website Hosting 200.00 200.00
Utilities – Ontario Hydro (Hwy Sign) 804.98 900.00
Bank fees 60.22 100.00
Benches (5) 7887.40 8000.00
Bookkeeping 158.20 200.00
Landscaping & Maintenance 3,491.52 3,500.00
Gift Sponsorship & Promotion 340.00 500.00
Post Office Box – yearly rental 195.49 200.00
Event Expenses – other than advertising
Tree lighting 0 50.00
Antique Festival 0 3,500.00
Orono fest 0 300.00
Elf on a Shelf 0 45.00
Santa Claus Parade 0 4,500.00
Easter Egg Hunt 0 550.00
More Than a Car Show 0 750.00
Pumpkin Walk 0 150.00
Total 28,432.18 29,645.00
*Capstone Grant – each year Capstone awards community grants totally $25,000 (part of the agreement
for hosting wind turbines). This year the BIA applied for the benches. In previous years the amount has
been $2000 to go towards an event expense. It is unknown at this time - until the new funding
applications become available for 2021, what the ask will be.
Events – due to the pandemic no events ran in 2020 and it is unknown what events will take place in
2021.
Attachment 3 to FSD-005-21