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Local Budgeting Manual, 150-504-420 - Oregon State Library - State ...

Local Budgeting Manual, 150-504-420 - Oregon State Library - State ...

• Make resolutions to

• Make resolutions to expend specific purpose grants, gifts, bequests, or devises received after the budget was adopted (ORS 294.326). • Make resolutions to expend proceeds of certain bonds [ORS 294.326(5)]. • Make resolutions to authorize the payment of debt service on certain bonds [ORS 294.483(2)]. Significance of the July 1 Date An appropriation is the authorization of the governing body to spend money and incur obligations for specific purposes. Appropriations are limited to a single fiscal year (ORS 294.311). That means all spending authority of a local government ends each June 30. A local government does not have legal spending authority for the new fiscal year until the budget is adopted and appropriated by resolution or ordinance. Since July 1 is the beginning of a new fiscal year, it is critical that a local government have an adopted budget and proper appropriations on July 1. Without an adopted budget and proper appropriations, the local government has no legal authority to spend money or incur debt. The governing body must keep this in mind if it appears that the budget will not be adopted until after July 1. Spending by the governing body for the new fiscal year without proper appropriations is unlawful. All governing body members should be familiar with ORS 294.100; this statute discusses the personal liability of a public official of a municipal corporation making unlawful expenditures. Resolution or Ordinance The resolution is a formal expression of the opinion or will of an official body. An ordinance has the character of an enactment of law by an established authority. For purposes of the Local Budget Law, a resolution or ordinance by the local governing body provides the legal authority to establish or dissolve funds, make appropriations for expenditures, adopt a budget, impose and categorize taxes, and all other legal actions pertaining to budgeting or making tax levies. Sample resolutions are shown at the end of this chapter. Example 1 is for organization unit–style budgets. It contains separate statements for imposing and categorizing taxes. Example 2 is for program–style budgets. It gives an example of a combined resolution statement for imposing and categorizing taxes. It also shows taxes imposed as a rate. Formally Adopting the Budget Sometime after the public hearing, at a regularly scheduled meeting, the governing body must enact the proper resolutions or ordinances to adopt the budget, make appropriations, and declare and categorize the 50 taxes. Adopt the budget by June 30. The resolution or ordinance adopting the budget should state the total amount of all the budget requirements. Making Appropriations Include a schedule of appropriations in the resolution or ordinance making appropriations. This schedule provides the local government with legal spending authority throughout the fiscal year. The schedule must identify the appropriations in accordance with ORS 294.435(3). Some common errors to be avoided are: • Do not simply refer to the adopted budget when making the appropriations in the resolution. For example: “Be it resolved that appropriations are hereby made as outlined in the adopted budget.” This is an example of an incorrect schedule of appropriations. • Do not lump appropriations into “miscellaneous,” “other,” or “special” categories. Use the appropriation categories allowed by Local Budget Law. ORS 294.435(3) specifies how appropriations must be made in the resolution or ordinance. The object classifications (major expenditure categories) in the budget provide an informative breakdown of the budget. They also serve as a basis for the appropriations. Make a separate appropriation for each organizational unit or program of each fund. Chapter 6, The Budget Document, explains organizational units and programs. Where programs or organizational units do not exist, appropriate amounts for personal services, materials and services, and capital outlay. Items that cannot be specifically identified to an organizational unit, or program (transfers, debt service, operating contingency, etc.) must be appropriated separately in the fund. Also appropriate items separately when the terms “organizational units” or “programs” do not apply. Refer to examples on pages 55 and 56. Remember, an unappropriated ending fund balance may be included in the detailed budget requirements. However, do not appropriate it. It is not intended to be spent in the fiscal year in which it is budgeted. For control purposes, the unappropriated ending fund balance may be listed or footnoted in the appropriation resolution. For local governments where the term “organizational unit” or “program” has no application, the appropriations must have separate amounts for: • personal services, • materials and services, • capital outlay, • debt service,

• special payments, • interfund revenue transfers, and • a general operating contingency, if applicable, for the fund. Requirements Not Appropriated Both the unappropriated ending fund balance and reserved for future expenditure are requirements. They are not appropriated expenditures. Show them as line items and include them in the total for each fund when determining the taxes estimated to be received. They must be included in the totals for each fund in the publication of the budget’s financial summary. However, do not appropriate the unappropriated ending fund balance or the reserved for future expenditure budgetary requirement in the resolution or ordinance. They may be shown as a footnote in the resolution. They are not intended to be spent and, therefore, should not be appropriated. Limits and Penalties Associated with Appropriations After the budget is adopted, the local government must stay within the appropriations set for the fiscal year. It is illegal to overspend an appropriation [ORS 294.100 and 294.435(4)]. The fiscal officer must pay close attention to each appropriation throughout the year to avoid overspending. Since Local Budget Law directs that appropriations must be made for each fund by organizational unit, program or object classification, it is not necessary that each line item be strictly enforced in its expenditure. If one line item is overexpended, adjust one or more of the other line items to keep expenditures within the limits of the appropriation. Example: General Fund Requirements Materials and Services Office supplies $1,000 Contract services 800 Utilities 2,000 Total $3,800 Resolution Making Appropriation General Fund Materials and Services $3,800 During the fiscal year, it is found that contract services expenses will exceed the budgeted amount by $100. However, the utilities expenses will be less than budgeted. No governing body action is needed to pay the $900 contract services expense as long at the total appropriation of $3,800 for Materials and Services is not exceeded. ORS 294.435(4) states that when proper appropriations have been fixed, “Thereafter no greater expenditure, or 51 encumbrance . . . of public money shall be made for any specific purpose other than the amount appropriated therefore except as provided in ORS 294.326, 294.440, 294.450 and 294.480.” The penalties for unlawful spending of public money are established under ORS 294.100. “It is unlawful for any public official to expend any money in excess of the amounts, or for any other or different purpose than provided by law.” The public official “shall be civilly liable for the return of the money by suit of the district attorney of the district where the offense is committed, or at the suit of any taxpayer of such district.” Declaring the Ad Valorem Taxes Local governments that are using ad valorem property taxes to balance their budgets must declare the tax amount or rate of each levy by resolution or ordinance. The resolution or ordinance should state the amount of all property taxes or the rate being certified to the county assessor [ORS 294.435(1)]. Property taxes are imposed for the tax year on the assessed value of all taxable property within the district. The amount and/or rate of property taxes declared in the resolution or ordinance must be the same amount and/or rate shown on the Notice of Property Tax (Form LB-50/ED-50). See Chapter 13 for more information on certifying ad valorem property taxes. Declaring Urban Renewal Taxes Every year an existing urban renewal plan must declare the amount of revenue it wishes to receive from division of tax and/or a special levy. The tax the plan can ask for is determined by its “option.” Implementing legislation for Measure 50 created three options for financing urban renewal indebtedness for existing plans. The municipality that activated the agency was directed to choose, by ordinance, one of the three options for each existing urban renewal plan that included a provision for a division of ad valorem tax. The option chosen by the municipality cannot be changed [ORS 457.435(4)]. New plans are not given a choice of options, they only receive the full division of tax amount. The governing body of the agency must pass a resolution declaring the amount of tax they wish to receive for the year and submit that resolution and a matching Form UR-50 to the assessor by July 15. Categorizing Tax The governing body must declare through resolution or ordinance the tax limitation category(ies) into which the local government’s tax is to be placed (ORS 294.435). The tax categories are education, general government,

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