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STATE OF MINNESOTA Office of the State Auditor

Rebecca Otto State Auditor

Minnesota County Budgets

2012 Summary Budget Data Together With

2011 Revised Summary Budget Data

Description of the Office of the State Auditor The mission of the Office of the State Auditor is to oversee local government finances for Minnesota taxpayers by helping to ensure financial integrity and accountability in local governmental financial activities. Through financial, compliance, and special audits, the State Auditor oversees and ensures that local government funds are used for the purposes intended by law and that local governments hold themselves to the highest standards of financial accountability. The State Auditor performs approximately 150 financial and compliance audits per year and has oversight responsibilities for over 3,300 local units of government throughout the state. The office currently maintains five divisions: Audit Practice - conducts financial and legal compliance audits of local governments; Government Information - collects and analyzes financial information for cities, towns, counties, and special districts; Legal/Special Investigations - provides legal analysis and counsel to the Office and responds to outside inquiries about Minnesota local government law; as well as investigates allegations of misfeasance, malfeasance, and nonfeasance in local government; Pension - monitors investment, financial, and actuarial reporting for approximately 730 public pension funds; and Tax Increment Financing - promotes compliance and accountability in local governments’ use of tax increment financing through financial and compliance audits. The State Auditor serves on the State Executive Council, State Board of Investment, Land Exchange Board, Public Employees Retirement Association Board, Minnesota Housing Finance Agency, and the Rural Finance Authority Board. Office of the State Auditor 525 Park Street, Suite 500 Saint Paul, Minnesota 55103 (651) 296-2551 [email protected] www.auditor.state.mn.us This document can be made available in alternative formats upon request. Call 651-296-2551 [voice] or 1-800-627-3529 [relay service] for assistance; or visit the Office of the State Auditor’s web site: www.auditor.state.mn.us.

Minnesota County Budgets

2012 Summary Budget Data Together With

2011 Revised Summary Budget Data

April 19, 2012

Government Information Division Office of the State Auditor State of Minnesota

Deputy State Auditor Greg Hierlinger

Staff John Jernberg, Research Analyst Christy John, Research Analyst Mark Albarado, Analyst Tiffany Heinz, Analyst Erin Schutta, Analyst Jennifer Carlson (Intern) Khanh Nguyen (Intern)

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Scope ……………………………………………………………………………………………… 1

Category Definitions ……………………………………………………………………………… 3

Table 1 - Summary of Budgeted Revenues and Expenditures - All Minnesota Counties ………… 9

Appendix 1 - Minnesota Counties Summary Budget Information ………………………………… 13

Table of Contents

Scope This publication presents 2011 (revised) and 2012 budget data for Minnesota counties. The data presented here reflects unaudited budgeted revenues and expenditures reported by counties to the Office of the State Auditor as required by Minn. Stat. § 6.745, Subd. 2. The counties of Lac qui Parle, Lake, and Wilkin failed to provide their budget information to the Office of the State Auditor. The form used to collect this information requested that counties provide two types of data: 2011 budget and 2012 budget. The 2011 budgets are the 2011 budgets adopted by county boards in November and December of 2010. The 2012 budgets are the 2012 budgets adopted by county boards in November and December of 2011. On Table 1, the Revised 2011 column reflects the 2011 budgets adopted by the county boards in November and December of 2010. Some counties submitted 2011 budgets with their 2012 budgets that were revised from what they submitted to the Office of the State Auditor last year. These budgets may be different for several reasons, such as the inclusion of additional budgeted funds, new staff completing the form, or the correction of errors. The data in this report is best used as a tool to help review budgeting decisions for the years 2011 and 2012. The budget represents a plan, reported by the county, for the coming year. Rarely do actual revenues and expenditures match the amount budgeted. In addition, the data reported does not represent all county revenues and expenditures. Counties report budget data only for funds for which an annual budget is adopted. Counties with funds where annual budgets are not adopted would have more revenues and expenditures than reported here. Also, the revenues and expenses of county public service enterprises are not included. The inclusion of enterprise funds would significantly alter the revenue and expenditure trends of counties. Because of the limitations of budget data, as it is a plan, the Office of the State Auditor recommends using the financial information provided in our publication, Minnesota County Finances, which are the actual audited revenues and expenditures. In addition to this publication, the Office of the State Auditor maintains an interactive database containing several years of data. The database can be accessed through the Office of the State Auditor’s website at: http://www.auditor.state.mn.us.1

1The direct link to the comparison tool is: http://www.auditor.state.mn.us/default.aspx?page=ComparisonTools.

1

Category Definitions Counties report budget data only for the Governmental Funds for which the county adopts annual budgets. Enterprise Funds, such as hospitals and nursing homes, are not included in this report.

Adopted Budgets for Governmental Funds

The Governmental Funds include the General Fund (GF), which is the general operating fund of the county; Special Revenue Funds (SR), which are funds established to record activity for a specific purpose; Debt Service Funds (DS), which are for the principal and interest payments on indebtedness; and Capital Project Funds (CP), which are for major construction projects or acquisition of assets.

Governmental Revenues

Taxes. Counties receive revenues from several types of taxes. In addition to levying property taxes, counties generate revenues from local option taxes, such as gravel taxes, mortgage registry taxes, deed taxes, hotel/motel taxes, franchise taxes, and sales and use taxes. Counties that have established tax increment financing (TIF) districts also receive tax increment revenue.

Property Taxes. Property taxes are taxes levied on an assessed valuation of real and/or personal property by the county government. The budgeted property taxes category includes Fiscal Disparities.

Tax Increments. Counties, by establishing county development authorities such as

housing and redevelopment authorities (HRAs) or economic development authorities (EDAs), may through these HRAs and EDAs reserve a portion of property taxes collected from increased development of parcels in a TIF district to pay development or redevelopment costs. The increased portion of property taxes on a parcel goes to the development authority as tax increment and is not available for the general services of the county, city, or school district until the end of the TIF district.

All Other Taxes. This category of budgeted revenue accounts for taxes, such as gravel

taxes, mortgage registry taxes, deed taxes, hotel/motel taxes, franchise taxes, and sales and use taxes. Counties must receive legislative approval before enacting local option taxes, such as hotel/motel taxes and sales and use taxes. The revenues are generally dedicated to specific public facilities, such as convention centers and arenas.

Special Assessments. These budgeted revenues refer to levies made against certain properties to defray all or part of the costs of a specific improvement deemed to benefit primarily those properties. The amount includes the penalties and interest paid on the assessments. Counties also use special assessments for debt service payments.

3

Licenses and Permits. This category accounts for budgeted revenues derived from fees collected for the issuance of both business and non-business licenses and permits. These budgeted revenues reflect receipts from liquor licenses, cigarette licenses, pet licenses, other business licenses, building permits, and other non-business licenses and permits. Intergovernmental Revenues. These are budgeted revenues received from other governments in the form of grants, entitlements, or shared revenues.

Federal Grants. Federal grants include the estimated amounts the county expects to receive from the Federal government for emergency preparedness, transit, highways, human services, and urban redevelopment.

State General Purpose Aid. Budgeted general purpose aid has no restrictions on its use

and includes, among other things, County Program Aid and Market Value Credits.

State Categorical Aid. Budgeted categorical aids are budgeted revenues for a specific purpose, such as income maintenance grants, social services grants, community health grants, state aid highway maintenance and construction grants, waste management grants, and pollution control grants.

Grants from County/Other Local Units. These are estimated revenues generally received

from cities, other counties, and townships for their share of a capital project. Charges for Services. These budgeted revenues reflect fees for activities of the governmental funds, such as facility rentals by individuals or organizations, recreation fees, and park dedication fees. Fines and Forfeits. These budgeted revenues reflect receipts from the payment of penalties for law violations, non-observance of contracts, and forfeited deposits. Interest on Investments. These budgeted revenues reflect interest earned on checking and savings accounts, CDs, money market funds, and bonds. All Other Revenues. These are budgeted revenues that cannot be classified in one of the other categories. These revenues include refunds, reimbursements, donations, and lease payments. Other Financing Sources

Proceeds from Bond Sales. This amount reflects the anticipated proceeds from the sale of bonds.

Other Financing Sources. The sale of fixed assets is included in this category.

Transfers from Other Funds. This category reflects budgeted transfers of resources

between funds. Examples include transfers from the General Fund to a Capital Projects Fund for authorized construction and transfers from an Enterprise Fund to the General Fund to finance General Fund expenditures.

4

Governmental Expenditures Current Expenditures Budgeted current expenditures include salaries and benefits, utilities, maintenance, and repairs, as well as operating expenses such as fuel, supplies, and insurance.

General Government. General government budgeted expenditures reflect the administration costs of county governments, including salaries of county officials and maintenance of buildings.

Public Safety. These budgeted expenditures reflect the costs related to the protection of persons and property. This category combines several distinct county departments, including sheriff, corrections, ambulance services, and other protection. Other protection includes building inspections, animal control, and flood control.

Streets and Highways. These budgeted expenditures reflect the costs associated with the

maintenance and repair of local highways, streets, bridges, and street equipment. Common expenditures include patching, seal coating, street lighting, street cleaning, and snow removal. Expenditures for road construction are not included in current expenditures but are accounted for as capital outlay.

Sanitation. These budgeted expenditures reflect the costs of refuse collection, disposal,

recycling, as well as weed and pest control. Some counties provide sanitation services through Enterprise Funds.

Human Services. These budgeted expenditures are for activities designed to provide

public assistance and institutional care for individuals economically unable to provide for themselves, including income maintenance programs and social service programs.

Health. These budgeted expenditures are for the maintenance of vital statistics, restaurant

inspection, communicable disease control, and various health services and clinics.

Culture and Recreation. These budgeted expenditures reflect the costs of libraries, park maintenance, mowing, planting, and removal of trees. Recreation expenditures include festivals, bands, museums, community centers, baseball fields, and organized recreation activities.

Conservation of Natural Resources. These budgeted expenditures are for the

conservation and development of natural resources. These include agricultural and forestry programs and services, weed inspection services, and soil and water conservation services.

5

Economic Development and Housing. These budgeted expenditures are for development and redevelopment activities in blighted or otherwise economically disadvantaged areas. Activities may include low-interest loans, cleanup of hazardous sites, rehabilitation of substandard housing and other physical facilities, and assistance to those wanting to provide housing and economic opportunity within a disadvantaged area.

All Other Current Expenditures. These are budgeted expenditures not classified

elsewhere. Examples include airport expenditures, cemeteries, unallocated insurance, unallocated pension costs, and public transportation costs.

Capital Outlay These budgeted expenditures include the purchase of equipment, machinery, and land; construction or permanent improvements of buildings; and street construction.

Streets and Highways Capital Outlay. This category includes budgeted expenditures for road and bridge construction projects, including major rehabilitation and improvement projects for existing roads and bridges.

All Other Capital Outlay. These budgeted expenditures include the purchase of

equipment, machinery, and land, and the construction or permanent improvement of buildings.

Debt Service

Principal. This category includes budgeted principal payments on bonded debt (including special assessment bonds) as well as all principal payments for other long-term and short-term debt. (It does not include debt payments made by Enterprise Funds.)

Interest and Fiscal Charges. This category includes all budgeted interest payments and

fiscal charges paid in the Governmental Funds. Other Financing Uses

Financing Uses. These are anticipated refunding bond proceeds deposited with an escrow agent and invested until they are used to pay principal and interest on the old debt at a future time and for remittance to other agencies.

Transfers to Other Funds. This category reflects budgeted transfers of resources

between funds. Examples include transfers from the General Fund to a Capital Projects Fund for authorized construction and operating subsidies from the General Fund to an Enterprise Fund, such as transit.

6

Other Information Increase (Decrease) in Fund Balance. This category shows budgeted increases or decreases in the fund balance. If the county intends to add to the fund balance during 2012, that would be shown as an increase in the fund balance. If the county intends to use a portion of its fund balance to finance projected expenditures, it would be shown as a (decrease) in the fund balance. Net Unrealized Gain or (Loss) from Investments. This shows the net increase or decrease in the market value of investments held as of December 31, 2011. This calculation is the difference between the market value of the investment on January 1 or when purchased, and the market value of the investment on December 31. Total Property Tax Levy. Property taxes are taxes levied on an assessed valuation of real and/or personal property by the county government. The property tax levy is for all funds, including Enterprise Funds.

7

PercentRevenues Amount % Amount % Change

Property Taxes 2,572,029,731$ 46.3% 2,624,109,880$ 46.4% 2.0%Tax Increments 917,397 0.0% 308,166 0.0% -66.4%All Other Taxes 68,797,899 1.2% 69,565,056 1.2% 1.1%Special Assessments 25,436,034 0.5% 26,349,104 0.5% 3.6%Licenses and Permits 26,907,312 0.5% 27,105,211 0.5% 0.7%

Intergovernmental RevenuesFederal Grants 679,429,414 12.2% 694,950,703 12.3% 2.3%State General Purpose Aids 240,318,417 4.3% 201,516,197 3.6% -16.1%State Categorical Aid 950,075,548 17.1% 1,045,472,413 18.5% 10.0%Grants from County/Other Local Units 81,933,279 1.5% 102,891,223 1.8% 25.6%

Total Intergovernmental Revenues 1,951,756,658$ 35.2% 2,044,830,536$ 36.1% 4.8%

Charges for Services 543,626,348 9.8% 535,661,041 9.5% -1.5%Fines and Forfeits 9,150,672 0.2% 8,964,988 0.2% -2.0%Investment Earnings 61,072,329 1.1% 50,280,575 0.9% -17.7%All Other Revenues 290,455,339 5.2% 273,194,289 4.8% -5.9%

Total Revenues 5,550,149,719$ 100.0% 5,660,368,846$ 100.0% 2.0%

Other Financing SourcesProceeds from Bond Sales 174,897,148 80,315,063 Other Financing Sources 5,630,417 6,780,969 Transfers from Other Funds 47,656,685 48,364,086

Total Revenues and Other Financing Sources 5,778,333,969$ 5,795,828,964$

ExpendituresCurrent Expenditures

General Government 896,931,309$ 19.2% 901,777,892$ 19.3% 0.5%Public Safety 1,018,939,375 21.9% 1,026,423,628 22.0% 0.7%Streets and Highways 434,085,315 9.3% 455,061,139 9.7% 4.8%Sanitation 84,080,889 1.8% 81,129,031 1.7% -3.5%Human Services 1,513,282,220 32.5% 1,493,184,390 32.0% -1.3%Health 333,031,827 7.1% 329,691,913 7.1% -1.0%Culture and Recreation 178,878,770 3.8% 178,447,106 3.8% -0.2%Conservation of Natural Resources 65,981,372 1.4% 66,952,200 1.4% 1.5%Economic Development and Housing 82,229,820 1.8% 71,662,154 1.5% -12.9%All Other Current Expenditures 53,094,065 1.1% 63,099,080 1.4% 18.8%

Total Current Expenditures 4,660,534,962$ 100.0% 4,667,428,533$ 100.0% 0.1% Percent of Total Expenditures 80.1% 80.4%

Capital OutlayStreet and Highway Capital Outlay 562,389,820 9.7% 603,112,954 10.4% 7.2%All Other Capital Outlay 287,414,846 4.9% 260,521,735 4.5% -9.4%

Total Capital Outlay 849,804,666$ 14.6% 863,634,689$ 14.9% 1.6%

Debt ServicePrincipal 195,563,585 3.4% 174,955,617 3.0% -10.5%Interest and Fiscal Charges 110,038,150 1.9% 101,929,094 1.8% -7.4%

Total Debt Service 305,601,735$ 5.3% 276,884,711$ 4.8% -9.4%Total Expenditures 5,815,941,363$ 100.0% 5,807,947,933$ 100.0% -0.1%

Other Financing UsesOther Financing Uses 1,420,059 1,466,885 Transfers to Other Funds 29,752,307 37,680,379

Total Expenditures and Other Financing Uses 5,847,113,729$ 5,847,095,197$

Increase/(Decrease) in Fund Balance (81,353,999)$ (75,994,960)$ Net Unrealized Gain or (Loss) from Investments 8,024,584$ NATotal Property Tax Levy** 2,592,400,457$ 2,634,142,994$ 1.6%

**Total Property Tax Levy refers to the total of all property tax bills within the county, whereas Property Taxes refers to the anticipated amount of taxes collected.

2012

2012 and Revised 2011

Revised 2011*

Table 1Summary of Budgeted Revenues and Expenditures

All Minnesota Counties

*The column entitled Revised 2011 reflects the 2011 budgets adopted by the county boards in November and December of 2010. Some counties submitted 2011 budgets with their 2012 budgets that were revised from what they submitted to the Office of the State Auditor last year. These budgets may be different for several reasons, such as the inclusion of additional budgeted funds, new staff completing the form, or the correction of errors.

9

Appendix 1

Minnesota Counties Summary Budget Information

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