2014 Mayors Estimate
2014 Mayors Estimate
2014 Mayors Estimate
We are committed to improving the quality of life in the City of Cleveland by strengthening our neighborhoods, delivering superior services, embracing the diversity of our citizens, and making Cleveland a desirable, safe city in which to live, work, raise a family, shop, study, play, and grow old.
Document Organization Summary . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1 Mayor's Letter of Transmittal. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2 Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4 Cleveland at a Glance . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6 Calendar. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 21 Fiscal Policies . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 23 Budgetary Process . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 25 City Wide Initiatives . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 27 Organizational Summary . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 41 Official Certificate of Estimated Resources . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 42 Capital Improvement Plan . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 43 Projected Fund Balance at Year End . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 48 Factors Affecting the Financial Condition . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 49 Fund Structure . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 50 General Fund . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 51 Expenditure by Program . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 54 Revenue Summaries . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 57 Revenue by Source . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 60 Special Revenue Fund Group. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 61 Major Enterprise . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 63 Small Enterprise. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 66 Internal Service Fund Group . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 68 Agency Fund . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 70 Departmental Goals & Objectives . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 71
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General Government. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 78
Council and Clerk of Council . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .78 Office of the Mayor . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .83 Office of Capital Projects . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .87 Landmarks Commission. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .93 Board of Building Standards and Appeals . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .98 Board of Zoning Appeals . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 102 Civil Service Commission. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 106 Community Relations Board. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 110 City Planning Commission . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 116 Boxing and Wrestling Commission . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 121 Office of Equal Opportunity . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 124 Cleveland Municipal Court - Judicial Division . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 128 Cleveland Municipal Court - Clerk's Division . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 137 Cleveland Municipal Court - Housing Division . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 143
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Non-Departmental. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 473
County Auditor Deductions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 473 Transfers to Other Funds . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 474 Other Administrative. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 475
Restricted Income Tax. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 477 Appropriation Ordinance. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 478 Glossary. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 489 Alphabetic Listing . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 495 Acknowledgements . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 497
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This document is designed to assist the reader in understanding the Citys budgetary processes and resultant budgets. It is organized as follows:
Mayor Transmittal Letter: The Transmittal Letter submitted by The Mayor to the City Council to summarize the budget recommendations, compiled from detailed information obtained from the various departments and prepared by the Director of Finance, for conducting the affairs of the City for the following year. The Introductory Section: A summary of the overall document structure, contents and purpose, the Citys profile, background and demographics, and City Government structure. Budget Policies: This section includes a summary of the provisions regulating the Citys budget, tax levies, budget preparation processes, and appropriations as set forth in the Ohio Revised Code and the City Charter. City Fund Structure: The Citys budget is organized by fund. Each fund consists of major categories. The major funds are: The General Fund, Special Revenue Funds, Enterprise Funds, and the Agency Fund. Funds from Federal and State grants are not included in the Citys Budget as they have their own funds and operate on a fiscal year determined by the grantor rather than the Citys fiscal year. This section also contains historical summaries of all City annually appropriated revenue sources, historical expenditures by Department, and historical summaries and projected balances for all City funds. Department Detail: Included for each Department and Division within the City are narratives defining each section. Also included for each Department / Division are detailed, 3 year historical budgetary line item expenses and revenue, as well as detailed staffing levels. Glossary: Included in the document is a Glossary provided to aid with terminology that may be unique to the City.
February 1, 2014
FEBRUARY 1, 2014
Mayor's Letter of Transmittal
To the Cleveland City Council and Citizens of Cleveland, As my administration begins a new four year term, I have set three comprehensive goals for that term. Each of these goals furthers the long-term economic growth of the City by either growing existing City revenue sources or creating new opportunities for revenue growth. First and foremost is a continuing commitment to education, which is the key to our economy's long-term success. We will continue implementing the "Cleveland Plan" for Cleveland Metropolitan School District which includes a 15 mill school levy passed in late 2012 that provides funding through the end of 2017. In tandem, the Higher Education Compact with universities will improve our students' opportunities to enroll in colleges and complete their courses of study. Second, we will continue to leverage our public projects and major private projects through community benefits agreements that insure that all of our citizens have the opportunity to participate in our region's economic growth. In September of 2013, the region's leading private and public employers (Cleveland Clinic Foundation, Dominion East Ohio, The Geis Companies, The Medical Center Co., Northeast Ohio Regional Sewer District, Case Western Reserve University, and Cleveland Municipal School District) executed a seven-page Community Benefits Memorandum of Understanding that will link billions of dollars of future construction investments to expanded apprenticeship and pre-apprenticeship programs and best practices for improving diversity and inclusion in the construction industry. Third, I want to embed the fiscal policies and procedures we have developed over the last 8 years-strong fiscal management, operational efficiency, accountability, and community benefits oriented developmentinto the normal operations of every department and division. We enter my next four-year term with significant momentum from 2013. While celebrating the opening of the $272 million Flats East Bank project and the $465 million convention center and medical mart, we assisted the Wolstein Companies in launching Phase Two of Flats East Bank (which will include 200 residential units), partnered with Cuyahoga County on its $250 million Ameritrust Project (new County headquarters building, housing, office space, and a new Heinen's grocery store) and its $260 million Convention Hotel, and worked with the Cleveland Browns to assemble a $120 million renovation package for FirstEnergy Stadium. In the first quarter of 2014, we expect to select a development team amongst four respondents to our Request for Proposals for private lakefront development.
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While the downtown development projects attained more notoriety, our neighborhood development progress is just as important. In April, 2013, the Globe and Mail stated: "For the first time in recent history, the inner city and neighborhoods such as Ohio City, Tremont and Detroit Shoreway are growing faster than the suburbs that surround it." Our lakefront neighborhoods received a major boost in June, 2013, when Governor John Kasich and I joined with Cleveland Metroparks to finalize a leasing deal that transferred management of our lakefront parks back to local control. I plan to add several neighborhoods each year as new neighborhoods of choice. Heritage View Homes (formerly Garden Valley Estates) is a public housing redevelopment project that includes 350 new rental housing units, 32 single-family detached housing units, and associated infrastructure improvements. Nearby projects are the Bridgeport Place Shopping Center and an Urban Agriculture Innovation Zone. Last year the U.S. Department of Housing and Urban Development awarded three grants totaling $17 million for construction at three public housing projects, including Heritage View Homes and Cedar Extension in Cleveland. In Cleveland, an additional $14 million in private investment will go into rebuilding and upgrading 387 units at Cedar Extension, Bohn Tower, and Heritage View Homes. The Buckeye neighborhood is gaining momentum after we opened the third and last phase of the St. Luke's project which includes a high performing charter school, nonprofit office space and a community meeting room. In the spring of 2014 we will dedicate the $6 million renovation of League Park: this project will make Cleveland the only city in the nation to achieve adaptive reuse of an original major league ballpark, and-along with the Upper Chester project-it will be a major catalyst in the continuing redevelopment of the Hough neighborhood. As 2014 begins, we expect to face new challenges to our budget. The federal assistance that has supported three years of aggressive demolition of condemned structures expired last year, and we need to identify new funding sources. We are in the midst of collective bargaining discussions, and State funding decisions can also impact our budget. However, as in 2013, this Mayor's Estimate will provide a solid base for our budget and the retention of City services in the face of these uncertainties. We will continue to probe the efficiencies of all City operations to achieve similar outcomes. Therefore, as required by Section 38 of the Charter of the City of Cleveland, I transmit the estimate of receipts and expenditures for all City departments and divisions for the year 2014, representing a general fund operating budget of $540.3 million and a total citywide budget of $1.47 billion. Sincerely,
February 1, 2014
Introduction
Introduction
The City of Clevelands budget is one of the most important documents that the City prepares as it identifies the services to be provided and how they will be financed. The Citys Budget document, therefore, is intended to serve as the following: The Mission of the City of Cleveland is We are committed to improving the quality of life in the City of Cleveland by strengthening our neighborhoods, delivering superior services, embracing the diversity of our citizens, and making Cleveland a desirable, safe city in which to live, work, raise a family, shop, study, play and grow old. As a policy guide, the Budget serves to inform the citizens of Cleveland on policies, goals, and objectives in place during the coming year for the satisfaction of its mission statement as well as major programs to be financed. Prudent fiscal management requires the use of budgets to efficiently allocate resources and manage ongoing operations. The written budget document itself outlines the financial needs of the City and itemizes the amount of money to be used for various projects in order to make better choices and decisions concerning policies and activities that can or can not be implemented. This also helps to establish accountability for the effective operation of programs and activities to be delivered. The Citys financial forecasts use internal historical data, National and State economic indicators, and expense and revenue projections to estimate the future financial state of the City including decisions for controlling expenses and increasing revenue. The following data sources are used by the Office of Budget and Management for the generation of the monthly Financial Outlook Reports in support of required internal decision making processes: Workforce Trends Includes comparisons of National, State, and local unemployment rates and trends WARN Notifications - Required layoff announcements for the Cleveland area resulting from the Worker Adjustment & Retraining Notification Act (WARN) which is a federal law that requires employers with 100 or more full-time workers to provide advanced notification to workers when faced with a plant closing or mass layoff. Housing Data This section provides average listing price for homes for sale in Cleveland, foreclosure filings, and the status of building permits in the area. CPI 12 month Consumer Price Index trends for the area. Fiscal Policies for the City of Cleveland, dictated by state law, City ordinances, and administrative policies, provide administrative guidelines for planning and directing the Citys day-to-day financial affairs. A summary of the specific policies upon which the budget was developed are as follows: Balanced Budgets as required by law. Modified Accrual Accounting Methodology which records revenues when available and expenditures when services are received and treats encumbrances as expenditures at the time the funds are encumbered. Internal Accounting Controls which assure the safeguarding of assets against loss from unauthorized use. Yearly Audits of all financial records and actions of the City, its officials and employees in compliance with local, State, and Federal law. Aggressive Cash Management and Investment policies and programs to help achieve the maximum financial return of invested funds.
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Introduction
The Budget as an Operations Guide
As an operations guide, the Budget indicates how departments and funds are organized and informs the reader of all the activities, services and functions carried out by each department. Each Department Summary section lists its mission statement, a brief department description along with objectives and performance measures. Also included are detailed 3 year expense and revenue budgets as well as staffing levels. As a communication device, the yearly budget provides summary information to aid constituents in interpreting the document. The Mayors Estimate and final resultant budget book, focuses only on the annual operating budget for each division. Our goal is to make it an effective communication tool that clearly explains significant budgetary issues, priorities, goals and objectives, and financial strategies of the City. The yearly budget plan allows the Senior Administrative Team to establish a baseline of accountability. To satisfy our goal, this budget document includes a Mayors Transmittal Letter which summarizes all of the fiscal plans of the City for the upcoming fiscal year. Updated Charts and graphs have been added to help consolidate, summarize, and better explain the information as much as possible. There is also a detailed table of contents and a glossary of common terms to make it easy to locate and understand its contents. Our structured monthly reports to senior management provides a roadmap that helps by communicating the Citys current position on issues and resources, highlighting deadlines for content delivery, and understanding the next steps for goal achievement. The City of Cleveland has annual operating budgets and multi-year budgets. The annual operating budget covers the calendar year and primarily relates to the normal daily operations of the City. This budget outlines specific expenditures (salaries, supplies, etc.) and programmatic totals. Under Ohio law, cities are required to maintain their accounts on a cash basis. Therefore, expenditure amounts presented in this document include not only actual expenditures, but also encumbrances and pre-encumbrances. Budgets that fall under this annually appropriated category are: