HomeMy WebLinkAbout2024_Adopted_Budget_Book
Oshkosh, WI
2024 Adopted Budget
Last Updated: December 29, 2023
Introduction
City Manager's 2024 Budget Message 6 -10
History of the City 11
Demographics 12 -15
Organizational Chart 16
Fund Structure 17
Budgetary Basis 18
Fund Descriptions 19 -30
Budget Process/ Timeline 31 -33
Key Performance Indicators 34 -45
Administrative Services 34
City Attorney 35
City Clerk 36
Community Development 37
Fire Department 38
Library 39
Museum 40
Parks Department 41
Police Department 42
Public Works 43
Transportation 44
Finance 45
Diversity Equity and Inclusion Metrics 46 -48
Budget Overview
Tax Levy 49 -52
Revenues - Sources of Funds 53
Expenditures - Use of Funds 54
Analysis of General Fund Balances and Graph 55 -56
General Fund Summary
General Fund Summary 57 -67
ARPA Projects 68
Fund Balance Summary 69
General Government
City Council 0100-0010 70 -72
City Manager 0100-0020 73 -75
City Attorney 0100-0030 76 -78
Human Resources 0100-0040 79 -81
City Clerk 0100-0050 82 -85
T A B L E O F C O N T E N T S
General Government Funds Con't
Elections 0100-0060 86 -89
Finance 0100-0071 90 -93
Taxes & Interest 0100-0072 94 -96
Other Revenue 0100-0073 97 -98
Purchasing 0100-0090 99 -101
Information Technology 0100-0110 102 -105
Insurance 0100-0120 106 -107
Facilities Maintenance 0100-0130 108 -111
Oshkosh Media 0100-0150 112 -115
Public Safety
Police 0100-0211 116 -120
Animal Care 0100-0214 121 -122
Auxiliary Police 0100-0217 123 -124
Crossing Guards 0100-0218 125 -128
Fire and Ambulance 0100-0230/0240 129 -133
Hydrant Rental 0100-0250 134 -135
Police & Fire Commission 0100-0290 136 -137
Public Works
Public Works - Administration 0100-0410 138 -140
Engineering 0100-0420 141 -145
Streets 0100-0430 146 -150
Central Garage 0100-0450 151 -155
Parks
Parks 0100-0610 156 -160
Forestry 0100-0620 161 -164
Community Development
Assessor 0100-0080 165 -168
Economic Development 0100-0730 169 -172
Planning Division 0100-0740 173 -176
Transportation
Electric 0100-0801 177 -181
Sign 0100-0810 182 -186
Unclassified
Unclassified 0100-0914 187 -188
Special Revenue Funds
Special Revenue Summary 189
Senior Center Revolving Fund 0201-0760 190 -192
CDBG Revolving Loan Fund 0202-4740 193 -196
BID District 0209-1030 197 -199
Recycling 0211-0480 200 -204
Special Revenue Funds Con't
Garbage Collection & Disposal (Sanitation Division)0212-0470 205 -209
Police Special Fund 0215-0211 210 -212
Street Lighting 0223-0460 213 -215
Museum Membership 0227-1070 216 -218
Senior Services Fund 0231-0760 219 -223
Fire Special Revenue 0235-0230 224 -226
Library 0239-1060 227 -231
Museum 0241-1070 232 -236
Museum Collections 0242-1070 237 -239
Cemetery 0247-0650 240 -244
Community Development Special Fund 0249-0740 245 -247
Park Revenue Facilities Fund 0255-0610 248 -252
Leach Amphitheater 0256-0610 253 -256
Public Works Special Fund 0257-0410 257 -260
Pollock Water Park Fund 0259-0610 261 -265
Neighborhood Improvement Loan Program 0301-0740 266 -267
Healthy Neighborhood Initiatives 0302-0740 268 -271
Community Development Block Grant 0303-0740 272 -274
Local GO EDC Revolving Loan Fund 0304-0740 275 -277
Senior Center 0307-0760 278 -279
Grand Opera House 0501-1020 280 -282
Oshkosh Convention Center 0503-1040 283 -287
Convention Center - Parking Ramp 0506-1040 288 -290
Capital Project Funds
TIF District Summary 291
Special Assessments Improvement Fund 0317-0410 292 -295
Equipment Fund 0323-XXXX 296 -298
Street Tree Memorial Fund 0325-0610 299 -301
TIF Districts 05XX-1040 302 -365
Debt Service
Debt Service Fund 0401-0074 366 -368
Enterprise and Utilities
Enterprise Funds Summary 369
Parking Utility 0509-1717 370 -373
Transit Utility 0511-1728 374 -380
Industrial Park Land Enterprise Fund 0515-1040 381 -382
Water Utility 0541-XXXX 383 -388
Sewer Utility 0551-XXXX 389 -393
Stormwater Utility 0561-XXXX 394 -398
Weights and Measures 0571-0720 399 -403
Inspection Services 0571-0750 404 -407
Other Funds
Employee Benefits Fund 0601-0903 408 -410
Workers Compensation 0603-0909 411 -414
Field Operations (Central City)0609-0430/0450 415 -420
Redevelopment Authority (Component)0901-0999 421 -423
Capital Improvement Program (CIP) Budget
CIP Projects by Funding Source 424 -435
CIP Projects by Department 436 -442
City Manager Mark A. Rohloff
City Hall, 215 Church Avenue P.O. Box 1130 Oshkosh, WI 54903-1130 920.236.5002 http://www.ci.oshkosh.wi.us
Date: November 14, 2023
To: Honorable Mayor and City Council
From: Mark A. Rohloff, City Manager
Subject: 2024 ADOPTED BUDGET
Transmitted for your consideration is the City of Oshkosh's adopted 2024 budget. The budget
includes the General Fund, special revenue funds, debt service funds, utility funds, and
internal service funds. As shown on page 54, these funds combine for a total operating budget
of $174.3 million. Additionally, the Capital Improvements Program (CIP) budget, beginning
on page 437, totals nearly $119 million.
Highlights of the 2024 General Fund Budget
• The 2024 General Fund budget (supported in whole or in part by general property tax
dollars) is adopted at $56,560,300, an increase of 3.37% over the 2023 budget.
• The overall tax levy, which supports the General Fund, special revenue funds, and the
debt service fund, is adopted at $47,556,800, an increase of 3.99% over the 2023 budget,
with a projected tax rate of $12.5029, an increase of $0.38 per $1,000 of assessed value.
• The increase in state shared revenue will provide approximately $2 million more in the
General Fund. This will help offset other revenue losses and expenditure increases due
to inflation.
• An expenditure increase of $1,842,000 in the General Fund can be attributed to the
following general areas:
1. Public Safety, + $1,836,100
2. Public Works, + $523,900
3. Parks, + $588,400
4. Unclassified, - $1,982,900
• Because of the need to absorb increases in areas such as debt service, commodities, and
general inflation, there are no proposed staffing increases in the base General Fund
budget for 2024.
• Unclassified expenditures are being reduced by nearly $2 million because the General
Fund will not be using reserve funds in 2024 to cover debt service as was done in 2023.
Without this reduction, the General Fund would have increased by $3.8 million, or
6.95%.
Page 6 of 442
• 2023 General Fund operating expenses are projected to be approximately $541,500
under budget due to ongoing staffing vacancies. Even with the use of $2 million in
reserves budgeted for debt service mentioned above, we are projecting to be 1% under
budget.
• 2023 General Fund revenues will be approximately $1,166,600 greater than budgeted
due to greater interest earnings and engineering reimbursements.
Expenditure Summary
The 2024 total spending plan of $56,560,300 represents a 3.37% increase. Some of the
expenditure highlights are as follows:
1. Public Safety - $34,119,100; a $1,836,100 increase. Public Safety remains a priority in our
strategic plan, and represents over 60% of the General Fund operating budget. These
amounts do not include additional costs associated with collective bargaining with the
Public Safety unions that are underway. No additional staffing is proposed in 2024.
2. Public Works - $5,394,700; a $523,900 increase. The General Fund portion of Public
Works is smaller than in recent years due to the decision to financially re-organize
many Public Works operations into an internal service fund. This method of budgeting
avoids “double budgeting” in both Public Works and other General Fund accounts, and
will help us maintain our eligibility for the state’s expenditure restraint program (ERP).
Public Works functions such as Streets, Storm Water, Central Garage, and other utilities
are presented in separate funds and account for a large portion of the City’s overall
$174.3 million operating budget.
3. Unclassified – $2,361,200; a $1,982,900 decrease. This sizeable decrease is due to a
decision in 2022 to borrow more in that year for 2023 capital projects, which was d one
as a protection against anticipated higher interest rates. This decision resulted in
additional debt service costs in 2023, which was funded through the use of $2 million in
reserves that was budgeted in this account. Now that this obligation has been met, this
amount has been removed. The remainder of this account is set aside as a contingency
for additional personnel costs as a result of anticipated salary adjustments for all
employees.
As adopted, the 2024 budget will result in no elimination of current staff positions, but will
also not increase staffing in General Fund areas. The impact of inflation has significantly
impacted operational costs, including staffing, commodities, utilities, and contractual costs. As
a result, I am not including any staffing increases in the General Fund operating budget.
Page 7 of 442
Revenues
Shared Revenue…in the Nick of Time
It is widely known that the Wisconsin legislature took a significant step forward with the
adoption of Act 12, which restored shared revenue losses that have occurred over the last 30
years and established a continuous funding source for shared revenue, using a portion of the
existing state sales tax. For Oshkosh, this resulted in a 20% increase to this revenue source, or
approximately $2 million in additional shared revenue for the 2024 budget year. While this
additional revenue is most welcome, I would like to put this into perspective: the City is now
back to receiving approximately the same amount of revenue from the state shared reve nue
program that we were receiving in 1992.
The timing of Act 12 could not have been better. With the significant rise of inflation over the
past couple of years, as well as increased personnel costs due to the demand for talent, the
need for this additional revenue was significant. On top of inflation costs, the City has
experienced reduced revenues in other areas, including state transportation aids, and fines and
forfeitures.
Other notable revenues for 2024 are as follows:
Property Tax Summary
The property tax levy is adopted at $47,556,800, an increase of $1,826,600 or 3.99%. The
property tax rate is projected to be $12.5029, an increase of $0.38 over the previous year. The
final rate will be subject to final values due from the Wisconsin Department of R evenue. The
City’s overall assessed value is projected to increase to $3.8 billion, or 0.79%. Although our
assessed value is not significantly increasing until revaluations take place in 2024, our
equalized (market) value remains strong, with an estimated increase of nearly $431.8 million,
or 8.58%, over 2023.
As shown on page 49, there are several special revenue funds that are largely supported by
levy dollars to fund their operations. Reductions in special revenues that are used to offset the
levy have yet to recover since COVID. Additionally, many fixed costs in personnel, utilities,
insurance, and outside services have increased in these areas. Consequently, several special
revenue funds that are largely subsidized by the General Fund will have to rely on their
reserves to cover the increased costs. These include the Library, Museum, and Senior Center
Funds. Special revenue funds that have no reserves, yet still see increased costs, must rely on
the levy to balance their funds. This includes Garbage Collection and Pollock Water Park.
Following Council’s discussion at their summer budget workshop, staff limited the adopted
levy increase to under 4%, albeit barely. While the levy increase was at the high end of
Page 8 of 442
Council’s range, we are unable to add any staff or other significant enhancements to
department budgets.
Other Revenues
Meanwhile, General Fund revenues other than property taxes are estimated to be $32,541,400,
an increase of 12.8% over 2023. Aside from the increased shared revenue, other revenue
highlights are as follows:
• General Transportation Aids (GTA): GTA are adopted $2,906,700, a decrease of $82,300,
or 2.75%. This amount is a reflection of declining gas tax revenues, as well as our
investment in roads vis-a-vis other municipalities. Until the state determines how to
address the impact of electric and hybrid vehicles that do not pay gas tax, this amount
will continue to decline.
• Municipal Services Program (MSP): The MSP, formerly the Payment for Municipal
Services Program, is projected to increase slightly in 2024 to $1,118,500, an increase of
$35,200 or 3%. Even with this increase, the program, which is intended to reimburse
cities for police and fire services that are provided to state-owned properties, is still
reimbursing at less than 40 cents on the dollar of where it should be funded and is less
than half of what we were receiving 15 years ago. The pursuit of more equitable
funding remains a goal for us at the state level.
• Interest Earnings: Although increased interest rates have an impact on our debt service
costs, the silver lining is that the interest earnings on our investment of idle fund s have
also increased. We are estimating interest earnings of $1.75 million in 2024, which is
much higher than our conservative estimate of $300,000 in 2023. While this has certainly
helped us address other revenue shortfalls, as interest rates gradually decrease, we can
expect this revenue source to decline in future years. We cannot rely on this revenue
source over the long term.
• Fines and Forfeitures: This general category is estimated at $683,600, a decrease of 26%
over the 2023 budget. It should be noted that this still represents a 19% increase over
what was collected in 2022. Following the COVID pandemic, the amount of traffic in the
downtown area where most parking tickets are written has been reduced due to fewer
office workers taking up fewer parking spaces and reducing the number of parking
violations. At the same time, court forfeitures are also down due to the fact that courts
are trying to use diversion programs for individuals that may not have the financial
means to pay fines. Additionally, the number of delinquent fines has increased as well,
contributing to a loss of over $100,000 from prior years. I do not see these revenues
recovering in the near future, so we will not be able to rely on increases in this source of
Page 9 of 442
revenue. Ironically, the volume of court cases continues to increase, but we are not
seeing the corresponding increase in revenues due to these new factors.
Fund Balance/General Fund
In July 2011, the Long-Range Finance Committee (LRFC) first recommended that the Council
adopt a formal fund balance policy. This policy was updated in 2019, establishing a range for
the unassigned fund balance to be between 16-30% of the upcoming year’s budgeted General
Fund expenditures. Cities with the highest bond ratings generally meet or exceed this
threshold.
As shown on page 55, the unassigned fund balance on December 31, 2022 was $19,684,630.
This amount represents 36% of 2023 General Fund budgeted expenditures, so we are well in
compliance with our policy. Staff projects a fund balance of approximately $19,092,799 at the
end of 2023, or 33.76% of 2024 General Fund expenditures. The amount exceeding our 30%
threshold is approximately $2.1 million. Because our fund balance exceeds the 30% threshold,
Council may choose to consider some one-time investments in debt reduction, capital projects,
equipment replacement, special projects, or building improvements. The primary purpose of
fund balance is to ensure that we can withstand the negative impact of events such as natural
disasters and economic downturns. For this reason, any use of our fund balance must be taken
with those thoughts in mind.
I am pleased that our fund balance remains strong, and that we are presenting a balanced
budget for 2024. The strict adherence to our fund balance policy has been a positive for us, and
maintaining that fund balance in accordance with the policy will remain a strength of ours to
improve our bond rating in the future.
Closing Remarks
I wish to thank Finance Director Van Gompel, his staff, and all departments for their work in
putting together this budget document for Council’s consideration. Their efforts are consistent
with our strategic plan’s goals and guiding principles, and have enabled us to submit a fiscally
responsible budget to the Council.
Respectfully submitted,
Mark A. Rohloff
City Manager
Page 10 of 442
History of the City
OSHKOSH, WISCONSIN
The City of Oshkosh was incorporated in 1853 and is the County seat of Winnebago County. It is located on
the western shore of Lake Winnebago in the Fox River Valley 173 miles north of the City of Chicago, Illinois,
and 275 miles east of the cities of Minneapolis and St. Paul, Minnesota. The corporate limits of the City
encompass approximately 24.24 square miles and the population is currently 66,694.
Oshkosh is the perfect place for businesses to call home. With an impressive
portfolio of top employers, Oshkosh has the resources that businesses and
entrepreneurs need to reach their goals and find success. Oshkosh is home to
many successful businesses that are powered by the area’s exceptional
workforce.
The Oshkosh-Neenah Metropolitan Statistical Area (MSA) has a population of
167,860 according to the U.S. Census reports from 2013. The MSA also has a
civilian labor force size of 93,243, according to the U.S. Bureau of Labor
Statistics.
The city plays host to hundreds of local, regional, national and international
events each year—Oshkosh is, after all, Wisconsin’s Event City.
GENERAL GOVERNMENT FUNCTIONS
The City's government consists of a City Manager who is employed by the Mayor and Council of 6 members
who are elected at large to a two term-year term.
The City provides a full range of municipal services contemplated by Statute or character. This includes police,
fire, streets and sanitation, social services, parks, public improvements, library and museum, mass transit,
planning and zoning, and general administrative services.
COUNCIL MEMBERS AND PRINCIPAL OFFICERS
COUNCIL MEMBERS
Name Title
Matt Mugerauer Mayor
Lynnsey Erickson Deputy Mayor
Michael Ford Council Member
Joseph Stephenson Council Member
Karl Buelow Council Member
Paul Esslinger Council Member
LaKeisha D. Haase Council Member
PRINCIPAL OFFICERS
Name Title
Mark A. Rohloff City Manager
Russ Van Gompel Director of Finance
Hailey Palmquist
Julie Calmes
Asst. Director of Finance-Comptroller
Asst. Director of Finance-Treasurer
Page 11 of 442
Population Overview
T O TA L P O P U L AT I O N
66,694 .2%
vs. 2020
G R O W T H R A N K
839 out of 1852
Municipalities in Wisconsin
D AY T I M E P O P U L AT I O N
77,761
Daytime population represents the effect of persons coming into or
leaving a community for work, entertainment, shopping, etc. during the
typical workday. An increased daytime population puts greater demand
on host community services which directly impacts operational costs.
* Data Source: American Community Survey 5-year estimates
P O P U L AT I O N B Y A G E G R O U P
Aging affects the needs and lifestyle choices of residents. Municipalities must adjust and plan services accordingly.
* Data Source: American Community Survey 5-year estimates
* Data Source: U.S. Census Bureau American Community Survey 5-year Data and the 2020, 2010, 2000, and 1990 Decennial Censuses
1990
1991
1992
1993
1994
1995
1996
1997
1998
1999
2000
2001
2002
2003
2004
2005
2006
2007
2008
2009
20102011
2012
2013
2014
2015
2016
2017
2018
2019
2020
2021
52.5k
55k
57.5k
60k
62.5k
65k
67.5k
70k
<5 5-9 10-14 15-19 20-24 25-34 35-44 45-54 55-59 60-64 65-74 75-84 >85
Household Analysis
T O TA L H O U S E H O L D S
26,565
Municipalities must consider the dynamics of household types to plan for and provide services
effectively. Household type also has a general correlation to income levels which affect the
municipal tax base.
* Data Source: American Community Survey 5-year estimates
Family Households
37%
26%
lower than state average
Married Couples
36%
16%
higher than state average
Singles
34%
Senior Living Alone
20%
Economic Analysis
Household income is a key data point in evaluating a community’s wealth and
spending power. Pay levels and earnings typically vary by geographic regions and
should be looked at in context of the overall cost of living.
H O U S E H O L D I N C O M E
Above $200,000
2%
Median Income
54 ,397
Below $25,000
20%
* Data Source: American Community Survey 5-year estimates
O v e r $2 0 0 ,0 0 0
$1 5 0 ,0 0 0 t o $2 0 0 ,0 0 0
$1 2 5 ,0 0 0 t o $1 5 0 ,0 0 0
$1 0 0 ,0 0 0 t o $1 2 5 ,0 0 0
$7 5 ,0 0 0 t o $1 0 0 ,0 0 0
$5 0 ,0 0 0 t o $7 5 ,0 0 0
$2 5 ,0 0 0 t o $5 0 ,0 0 0
B e l o w $2 5 ,0 0 0
Housing Overview
2 0 2 1 M E D I A N H O M E VA L U E
139,900
* Data Source: 2021 US Census Bureau (http://www.census.gov/data/developers/data-
sets.html), American Community Survey. Home value data includes all types of owner-occupied
housing.
H O M E V A L U E D I S T R I B U T I O N
* Data Source: 2021 US Census Bureau (http://www.census.gov/data/developers/data-
sets.html), American Community Survey. Home value data includes all types of owner-occupied
housing.
H O M E O W N E R S V S R E N T E R S
Oshkosh
45%
Rent
56%
Own
State Avg.
33%
Rent
67%
Own
* Data Source: 2021 US Census Bureau
(http://www.census.gov/data/developers/data-sets.html),
American Community Survey. Home value data includes all
types of owner-occupied housing.
2009
2010
2011
2012
2013
2014
2015
2016
2017
2018
2019
2020
2021
1 1 0 k
1 2 0 k
1 3 0 k
1 4 0 k
1 5 0 k
>$1,000,000
$750,0 0 0 to $999,9 99
$500,000 to $749,9 99
$400,000 to $499,9 99
$300,0 0 0 to $399,9 99
$250,000 to $299,9 99
$2 00,00 0 to $249,9 99
$150,000 to $199,9 99
$100,000 to $149,9 99
$50,000 to $99,9 99
<$49,9 99
ORGANIZATIONAL CHART
The Voters
Mayor &
City Council
City Manager
Administrative
Services City Clerk
Community
Development Finance
Fire Legal
Library Museum
Parks Police
Public Works Transportation
Page 16 of 442
City of Oshkosh
Fund Structure
Governmental Funds
General
Fund Special Revenue Funds
Senior
Services
Revolving
Fund
CDBG
Revolving
Loan Fund
BID District
Fund
Recycling
Fund
Garbage
Collection
& Disposal
Fund
Police
Special
Fund
Street
Lighting
Fund
Special
Events -
Council
Fund
Museum
Membership
Fund
Senior
Services
Division
Fire Special
Revenue
Fund
LIbrary
Museum
Museum
Collections
Fund
Cemetery
Community
Development
Special
Fund
Parks
Revenue
Facilities
Fund
Leach
Amphitheater
Public
Works
Special
Fund
Pollock
Pool
Neighborhood
Improvement
Loan
Program
Healthy
Neighborhood
Initiative
Community
Development
Block Grant
Local
GO EDC
Revolving
Loan Fund
Senior
Center
Fund
Debt
Service
Fund
Capital Project Funds
Special
Assessments
Improvement
Fund
TIF #8
TIF #12
TIF #13
TIF #14
TIF #15
TIF #16
Equipment
Fund
TIF #17
TIF #18
TIF #19
TIF #20
TIF #21
TIF #23
TIF #24
TIF #25
Street Tree
Memorial
Fund
TIF #26
TIF #27
TIF #28
TIF #29
TIF #30
TIF #31
TIF #32
TIF #33
TIF #34
TIF #35
TIF #36
TIF #37
TIF #38
TIF #39
TIF #40
Proprietary
Funds
Enterprise
Funds
Grand
Opera
House
Conv.
Center
Conv.
Center
Parking
Ramp
Parking
Utility
Transit
Utility
Industrial
Park Land
Fund
Water
Utility
Sewer
Utility
Storm-
water
Utility
Weights &
Measures
Fund
Inspection
Services
Division
Employee
Benefits
Fund
Workers
Comp. Fund
Field
Operations
Fund
Trusts Fund
Redevelop
ment
Authority
Fund
Other
Funds
TIF #41
TIF #42
TIF #43
Page 17 of 442
BUDGETARY BASIS
Budgetary Basis refers to the point in time at which revenues and expenditures are recognized
in the accounts and reported in the financial statements.
Modified Accrual is the method under which revenues and other financial resource increments
are recognized when they become susceptible to accrual; that is, when they become both
“measurable” and “available to finance expenditures of the current period.” “Available” means
collectible in the current period or soon enough thereafter to be used to pay the liabilities of the
current period.
The Governmental Funds (General, Special Revenue, Debt Service, and Capital Project) and
Fiduciary Funds are budgeted and accounted for using the modified accrual basis of
accounting. Property taxes are recorded in the year levied as receivable and deferred revenues.
They are recognized as revenues in the succeeding year when services financed by the levy are
being provided. Property taxes are levied and billed in December. Payment in full or the first
installment payment due date is January 31. The second installment payment due date is March
31, third installment payment due date is May 31, and the fourth installment payment is due
July 31.
Intergovernmental aids and grants are recognized as revenues in the period the related
expenditures are incurred, if applicable, or when the city is entitled to the aids.
Special assessments are recorded as revenues when collected. Annual installments due in future
years are reflected as receivables and deferred revenues.
Other general revenues such as fines and forfeitures, inspection fees, recreation fees, and
miscellaneous revenues are recognized when received in cash or when measurable and
available under the criteria described above.
Accrual Basis indicates revenues are recorded when they are earned (whether or not cash is
received at the time) and expenditures are recorded when goods and services are received
(whether cash disbursements are made at the time or not).
Finance reporting for the Proprietary Funds is on the accrual basis of accounting. Depreciation
is budgeted as a separate capital and debt activity and is identified as part of the balance sheet
for presentation.
Page 18 of 442
FUND DESCRIPTIONS
Governmental accounting systems should be organized and operated on a fund basis.
Individual resources are allocated to, and accounted for, in separate accounting entities,
identified as funds, based upon the purposes for which they are to be spent and the means by
which spending activities are legally controlled.
Governmental units should establish and maintain those funds required by law and sound
financial administration. Only the minimum number of funds consistent with legal and
operating requirements should be established because unnecessary funds result in inflexibility,
undue complexity, and inefficient financial administrations.
Individual funds are classified into three broad categories: Governmental, Proprietary, and
Fiduciary. All funds are appropriated.
Governmental Fund Types
Governmental Fund Types are subdivided into four sections: General Fund, Special Revenue
Funds, Debt Service Funds, and Capital Project Funds.
• General Fund: The general operating fund used to account for most of the day to
day activities of the city.
• Special Revenue Funds: Account for the proceeds of specific revenue sources that
are legally restricted to expenditures for specified purposes.
• Debt Service Funds: Account for the accumulation of resources for the payment of
general long-term debt principal, interest, and related costs.
• Capital Project Funds: Account for the financing and expenses associated with
major equipment purchases, land purchases, or infrastructure projects.
Major Fund Definition
A Major Fund is defined as a fund that reports at least 10 percent of total governmental assets,
liabilities, revenues or expenditures and at least five percent of combined city assets, liabilities,
revenues or expenditures. The City may choose to classify a fund as a major fund if that fund
has particular importance to financial users. By definition, the General Fund is always
considered a major fund. The remaining major funds are Debt Service Fund, Transit Utility
Fund, Water Utility Fund, Sewer Utility Fund, and Storm Water Utility Fund.
Fund 0100 – General Fund (Major Fund)
The General Fund of a governmental unit serves as the primary reporting vehicle for current
governmental operations. The General Fund, by definition, accounts for all current financial
resources not required by law or administrative action to be accounted for in another fund. The
major sources of revenue for the General Fund include: property taxes and intergovernmental
revenue. The major departments funded are: City Council, City Manager, City Attorney,
Page 19 of 442
Administrative Services, City Clerk, Elections, Finance, Police, Fire, Public Works, Parks,
Community Development, Transportation, and the Unclassified Fund. This fund is considered
a major fund.
Special Revenue Funds
Fund 0201 – Senior Services Revolving Fund (non-Major Fund)
The Senior Center Revolving Fund is used to account for services provided to senior citizens
funded through direct and indirect charges, sponsorships, and donations.
Fund 0202 – CDBG Revolving Loan Fund (non-Major Fund)
The CDBG Revolving Loan Fund is used to account for deferred payment loans made to low
and moderate homebuyers with housing improvement cost and down payments assistance to
qualified homebuyers.
Fund 0209 – BID District Fund (non-Major Fund)
The BID District Fund is used to account for the activities of the Downtown Oshkosh Business
Improvement District (BID). The BID, created in 1987, has maintained available free parking in
the downtown and proactively supports revitalization efforts through a special charge levied
against businesses in the district.
Fund 0211 – Recycling Fund (non-Major Fund)
The Recycling Fund is used to account for recycling activities which were created to reduce the
amount of solid waste going to the landfill. The Recycling program is primarily funded by fees
and state aid payment.
Fund 0212 – Garbage Collection & Disposal Fund (non-Major Fund)
The Garbage Collection & Disposal Fund is used to account for regular or special collections of
solid waste and to maintain city property previously used for landfill purposes. It is funded by
property tax revenue and other fees.
Fund 0215 – Police Special Fund (non-Major Fund)
The Police Special Fund is used to account for proceeds from Federal and State Grants to be
utilized for specific needs as well as from donations or gifts for Police needs.
Fund 0223 – Street Lighting Fund (non-Major Fund)
The Street Lighting Fund is used to account for a comprehensive street lighting network in
public right-of-way, parking lots, parks, and other city owned facilities. Funding is provided by
general property tax revenue.
Page 20 of 442
Fund 0224 – Special Events - Council Fund (non-Major Fund)
The Special Events - Council Fund is used to account for Special Events directed for
participation by the City Council. Funding is obtained from donations.
Fund 0227 – Museum Membership Fund (non-Major Fund)
The Museum Membership Fund is used to account for memberships at the Oshkosh Public
Museum and is used to augment the Museum’s annual budget.
Fund 0231 – Senior Services Fund (non-Major Fund)
The Senior Services Fund is used to account for operations of the Seniors Center which enrich
the quality of life for adults fifty and over. Funding is obtained through general property tax
revenue, county aid, building rent, and other gifts and donations.
Fund 0235 – Fire Special Revenue Fund (non-Major Fund)
The Fire Special Revenue Fund is used to account for grants from the Federal Assistance
Program which will support and improve emergency medical services.
Fund 0239 – Library Fund (non-Major Fund)
The Library Fund is used to account for current operations and capital costs associated with the
Oshkosh Public Library. Funding consists of general property tax revenue, county shared
revenue, contractual revenue, donations, and charges. The Library mission is to provide free
access to information, preserve local history, and create a vibrant community gathering space.
Fund 0241 – Museum Fund (non-Major Fund)
The Museum Fund is used to account for the operations of the Oshkosh Public Museum. The
Oshkosh Public Museum is a center for the preservation of our culture dedicated to bringing
history and heritage through quality, creative, and unrestricted educational experiences.
Funding consists of general property tax revenue, admissions, and transfers from other
museum funds.
Fund 0242 – Museum Collections Fund (non-Major Fund)
The Museum Collections Fund is used to account for the acquisition of materials for the
Museum’s Collections, as well as to provide for the conservation and restoration of existing
collections. Funds are obtained through gifts and donations.
Fund 0247 – Cemetery Fund (non-Major Fund)
The Riverside Cemetery Fund is used to account for the operations of Riverside Cemetery.
Funding is obtained from general property tax revenue, sale of lots, gifts and donations, and
other sources.
Page 21 of 442
Fund 0249 – Community Development Special Fund (non-Major Fund)
The Community Development Special Fund is used to account for State and Federal Grants
associated with development projects or redevelopment projects.
Fund 0255 – Park Revenue Facilities Fund (non-Major Fund)
The Park Revenue Facilities Fund is used to account for facilities that are not dependent on
property tax revenue. These facilities include boat launches, Menominee Park Zoo and
Amusement Rides and Concessions, Millers Bay, Reetz Concessions, Zoo Special Events Lakefly
Café, and Lakeshore Park.
Fund 0256 – Leach Amphitheater Fund (non-Major Fund)
The Leach Amphitheater Fund is used to account for the amphitheater operations which are
funded through general property tax revenue, rentals, concessions, sponsorships, gifts and
donations, and other miscellaneous revenue.
Fund 0257 – Public Works Special Fund (non-major Fund)
The Lead Service Line Replacement Fund is used to account for assistance provided to property
owners in replacing private lead water services. Funding is received from a state aid program.
Fund 0259 – Pollock Water Park Fund (non-Major Fund)
The Pollock Water Park Fund is used to account for the operations of Pollock Pool. Funding is
obtained from general property tax revenue, admissions, concessions, sponsorships, gifts,
donations, and other miscellaneous revenue.
Fund 0271 – Rental Inspections Fund (non-Major Fund)
The Rental Inspections Fund is used to account for the rental inspection program which secures
the public’s health, safety, and welfare through the enforcement of state and city codes.
Funding is received through general property tax revenue and fees.
Fund 0301 – Neighborhood Improvement Loan Program (non-Major Fund)
The Neighborhood Improvement Loan Program is used to account for funds which are used to
expend federal Housing and Urban Development (HUD) Department HOME funds for low-
income housing in the City.
Fund 0302 – Healthy Neighborhood Initiatives Fund (non-Major Fund)
The Healthy Neighborhood Initiatives Fund is used to account for funds which are used to
strengthen neighborhoods throughout the community. Funds are received from loan
repayments and the closure of TIF Districts. Funds are expended through adopted
neighborhood plans or to support healthy neighborhoods.
Page 22 of 442
Fund 0303 – Community Development Block Grant Fund (non-Major Fund)
The Community Development Block Grant Fund is used to account for the Federal Grant
Program which is used to help low and moderate income residents by improving housing
conditions, improving neighborhoods, providing social services, and eliminating blight.
Fund 0304 – Local GO EDC Revolving Loan Fund (non-Major Fund)
The Local GO EDC Revolving Loan Fund is used to account for loans for economic
development. Funding is obtained from transfers from closing TIF Districts.
Fund 0307 – Senior Center Fund (non-Major Fund)
The Senior Center Fund is used to account for facility related expenses and improvements.
Fund 0501 – Grand Opera House Fund (non-Major Fund)
The Grand Opera House Fund is used to account for the coordination and oversight of the
Grand Opera House building, grounds, and facility needs. Funding is obtained through room
tax revenue, general property tax, and other miscellaneous revenue.
Fund 0503 – Convention Center Fund (non-Major Fund)
The Convention Center Fund is used to account for the collection and distribution of room tax
revenue and the expenses of the Convention Center building and grounds.
Fund 0506 – Convention Center – Parking Ramp Fund (non-Major Fund)
The Convention Center – Parking Ramp Fund is to account for the collection of parking ramps
fees and the parking ramp utility costs, repairs, equipment replacement, and maintenance.
Capital Project Funds
Fund 0317 – Special Assessments Improvement Fund (Major Fund)
The Special Assessment Fund is used to account for the collection of special assessments against
property owners for public improvements.
Fund 0323 – Equipment Fund (non-Major Fund)
The Equipment Fund is used to account for some equipment purchases that are funded by
general property tax levy and not dependent on the issuance of debt.
Fund 0333 – Street Tree Memorial Fund (non-Major Fund)
The Street Tree Memorial Fund is used to account for a program that offers citizens the
opportunity to purchase tree memorials to be placed within City parks. Funding is obtained
through grants, gifts, and donations.
Page 23 of 442
Fund 0502 – TIF 25 City Center Hotel Rehabilitation Capital Project Fund (non-Major Fund)
The TIF 25 City Center Hotel Rehabilitation Capital Project Fund is used to account for the costs
associated with the project plan for development.
Fund 0504 – TIF 26 Aviation Business Park Capital Project Fund (non-Major Fund)
The TIF 26 Aviation Business Park Capital Project Fund is used to account for the costs
associated with the project plan for development.
Fund 0508 – TIF 27 North Main Street Industrial Park Capital Project Fund (non-Major Fund)
The TIF 27 North Main Street Industrial Park Capital Project Fund is a used to account for the
costs associated with the project plan for development.
Fund 0510 – TIF 28 Beach Building Redevelopment Capital Project Fund (non-Major Fund)The
TIF 28 Beach Building Redevelopment Capital Project Fund is used to account for the costs
associated with the project plan for development.
Fund 0512 – TIF 29 Morgan District Capital Project Fund (non-Major Fund)
The TIF 29 Morgan District Capital Project Fund is used to account for the costs associated with
the project plan for development.
Fund 0514 – TIF 30 Washington Building Capital Project Fund (non-Major Fund)
The TIF 30 Washington Building Capital Project Fund is used to account for the costs associated
with the project plan for development.
Fund 0516 – TIF 31 Buckstaff Redevelopment Capital Project Fund (non-Major Fund)
The TIF 31 Buckstaff Redevelopment Capital Project Fund is used to account for the costs
associated with the project plan for development.
Fund 0518 – TIF 32 Granary Redevelopment Capital Project Fund (non-Major Fund)
The TIF 32 Granary Redevelopment Capital Project Fund is used to account for the costs
associated with the project plan for development.
Fund 0519 – TIF 33 Lamico Redevelopment Capital Project Fund (non-Major Fund)
The TIF 33 Lamico Redevelopment Capital Project Fund is used to account for the costs
associated with the project plan for development.
Fund 0520 – TIF 24 Oshkosh Corp E-COAT Project Fund (non-Major Fund)
The TIF 24 Oshkosh Corp Capital Project Fund is used to account for the costs associated with
the project plan for development.
Page 24 of 442
Fund 0522 – TIF 14 Mercy Medical Center Capital Project Fund (non-Major Fund)
The TIF 14 Mercy Medical Center Capital Project Fund is used to account for the costs
associated with the project plan for development.
Fund 0524 – TIF 15 Park Plaza/Commerce Street Capital Project Fund (non-Major Fund)
The TIF 15 Park Plaza/Commerce Street Capital Project Fund is used to account for the costs
associated with the project plan for development.
Fund 0526 – TIF 16 100 Block Redevelopment Capital Project Fund (non-Major Fund)
The TIF 16 100 Block Redevelopment Capital Project Fund is used to account for the costs
associated with the project plan for development.
Fund 0528 – TIF 19 NW Industrial Park Expansion Capital Project Fund (non-Major Fund)
The TIF 19 NW Industrial Park Expansion Capital Project Fund is used to account for the costs
associated with the project plan for development.
Fund 0529 – TIF 8 S Aviation Industrial Park Capital Project Fund (non-Major Fund)
The TIF 8 S Aviation Industrial Park Capital Project Fund is used to account for the costs
associated with the project plan for development.
Fund 0530 – TIF 17 City Center Redevelopment Capital Project Fund (non-Major Fund)
The TIF 17 City Center Redevelopment Capital Project Fund is used to account for the costs
associated with the project plan for development.
Fund 0532 – TIF 18 SW Industrial Park Expansion Capital Project Fund (non-Major Fund)
The TIF 18 SW Industrial Park Expansion Capital Project Fund is used to account for the costs
associated with the project plan for development.
Fund 0534 – TIF 20 South Shore Redevelopment Capital Project Fund (non-Major Fund)
The TIF 20 South Shore Redevelopment Capital Project Fund is to account for the costs
associated with the project plan for development.
Fund 0536 – TIF 21 Fox River Corridor Capital Project Fund (non-Major Fund)
The TIF 21 Fox River Corridor Capital Project Fund is used to account for the costs associated
with the project plan for development.
Fund 0537 – TIF 12 Division Street Redevelopment Capital Project Fund (non-Major Fund)
The TIF 12 Division Street Redevelopment Capital Project Fund is used to account for the costs
associated with the project plan for development.
Page 25 of 442
Fund 0539 – TIF 13 Marion Road/Pearl Avenue Capital Project Fund (non-Major Fund)
The TIF 13 Marion Road/Pearl Avenue Capital Project Fund is used to account for the costs
associated with the project plan for development.
Fund 0540 – TIF 23 SW Industrial Park Expansion Capital Project Fund (non-Major Fund)
The TIF 23 SW Industrial Park Expansion Capital Project Fund is used to account for the costs
associated with the project plan for development.
Fund 0580 – TIF 34 Oshkosh Corporation Headquarters Capital Project Fund (non-Major Fund)
The TIF 34 Oshkosh Corporation Headquarters Capital Project Fund is used to account for the
costs associated with the project plan for development.
Fund 0581 – TIF 35 Oshkosh Avenue Corridor Capital Project Fund (non-Major Fund)
The TIF 35 Oshkosh Avenue Corridor Capital Project Fund is used to account for the costs
associated with the project plan for development.
Fund 0582 – TIF 36 Merge Redevelopment Capital Project Fund (non-Major Fund)
The TIF 36 Merge Redevelopment Capital Project Fund is used to account for the costs
associated with the project plan for development.
Fund 0583 – TIF 37 Aviation Plaza Center Capital Project Fund (non-Major Fund)
The TIF 37 Aviation Plaza Center Capital Project Fund is used to account for the costs associated
with the project plan for development.
Fund 0584 – TIF 38 Pioneer Redevelopment Capital Project Fund (non-Major Fund)
The TIF 38 Pioneer Redevelopment Capital Project Fund is used to account for the costs
associated with the project plan for development.
Fund 0585 – TIF 39 Cabrini School Redevelopment Capital Project Fund (non-Major Fund)
The TIF 39 Cabrini School Redevelopment Capital Project Fund is used to account for the costs
associated with the project plan for development.
Fund 0586 – TIF 40 Miles Kimball Redevelopment Capital Project Fund (non-Major Fund)
The TIF 40 Miles Kimball Redevelopment Capital Project Fund is used to account for the costs
associated with the project plan for development.
Fund 0587 – TIF 41 Smith School Redevelopment Capital Project Fund (non-Major Fund)
The TIF 41 Smith School Redevelopment Capital Project Fund is used to account for the costs
associated with the project plan for development
Page 26 of 442
Fund 0588 – TIF 42 Morgan Crossing Phase II Capital Project Fund (non-Major Fund)
The TIF 42 Morgan Crossing Phase II is used to account for the costs associated with the project
plan for development
Fund 0589 – TIF 43 Mill on Main Ph 1, LLC Capital Project Fund (non-Major Fund)
The TIF 43 Mill on Main Ph 1, LLC is used to account for the costs associated with the project
plan for development
Debt Service Fund
Fund 0401 – Debt Service Fund (Major Fund)
The Debt Service Fund is used to account for the accumulation of resources for the payment of
general long term debt principal, interest, and related costs. This fund is considered a major
fund.
Proprietary Fund Type
Proprietary Fund Type is subdivided into two sections: Enterprise Funds and Internal Service
Funds.
• Enterprise Funds: Account for the operations that are financed and operated in a
manner similar to private business, where the intent of the governing body is that
the cost (expenses, including depreciation) of providing goods or services to the
general public on a continuing basis be financed or recovered primarily through
user charges, or where the governing body has decided that periodic
determination of revenues earned, expenses incurred, and/or net income is
appropriate for capital maintenance, public policy, management control,
accountability or other purposes.
• Internal Service Funds: Account for the financing of goods or services provided
by one department or agency to other departments or agencies of the city or to
other governments on a cost reimbursement basis.
Enterprise Funds
Fund 0509 – Parking Utility Fund (non-Major Fund)
The Parking Utility Fund is used to account for revenues derived from permits and other
revenues attributable to parking. The revenues are used to defray administrative and
operational costs related to parking operations and to acquire, landscape, beautify, and
construct parking lots and structures.
Page 27 of 442
Fund 0511 – Transit Utility Fund (Major Fund)
The Transit Utility Fund is used to segregate revenues and expenditures of the Transit System
for the purpose of determining adequate user fees, giving consideration to additional funding
from the Federal, State, and City governments.
Fund 0515 – Industrial Park Land Enterprise Fund (non-Major Fund)
The Industrial Park Land Enterprise Fund is used to account for the acquisition of land for
Industrial and Business Parks. Funding is obtained from sales from other City industrial and
business sites.
Fund 0541 – Water Utility Fund (Major Fund)
The Water Utility Fund is used to account for all activities necessary to provide water services to
residents of the city and outlying areas. Fund activities include administration, billing and
collection, operations, maintenance, financing, and related debt service.
Fund 0551 – Sewer Utility Fund (Major Fund)
The Sewer Utility Fund is used to account for segregated costs associated with the Wa stewater
System in order to establish fair and equitable sewer service rates; provide service to residential,
municipal, and commercial customers; and bill customers on either a monthly or quarterly
basis.
Fund 0561 – Stormwater Utility Fund (Major Fund)
The Storm Utility Fund is used to account for the costs associated with improvements to
manage storm water through flood control projects and water quality improvements as
required through the WI DNR.
Fund 0571-0720 – Weights and Measures Fund (non-Major Fund)
The Weights and Measures Fund is used to account for the activities associated with providing
weights and measures programming which includes monitoring devices and education.
Fund 0571-0750 – Inspection Services Fund (non-Major Fund)
The Inspection Services Fund is used to account for inspection services. Funding is obtained
through the issuance of permits and collection of fees along with other miscellaneous revenue.
Internal Service Funds
Fund 0601 – Health Insurance Fund (non-Major Fund)
The Health Insurance Fund is an Internal Service Fund established to account for the risk
management program established for health insurance. The fund also accounts for the City
portion of costs associated with the shared health clinic and wellness center.
Page 28 of 442
Fund 0603 –Workers Compensation Fund (non-Major Fund)
The Workers Compensation Fund is an Internal Service Fund established to account for
worker’s compensation payments made by the city since it became self-insured for worker’s
compensation. All departments are charged similarly as they would be if the city was insured
by an outside entity.
Fund 0609 – Field Operations (non-Major Fund)
The Central Garage Fund is an Internal Service Fund used to account for support services
provided to meet the operational requirements of the Department of Public Works and other
City Departments. An internal service fund is a fund used in governmental accounting to track
goods or services shifted between departments on a cost reimbursement basis
Fiduciary Funds
Fiduciary funds are used to account for resources that a government holds as a trustee or agent
on behalf of an outside party that cannot be used to support the government's own programs.
Investment/Private-Purpose Trust Fund
Fund 0707 – Trust Fund (non-Major Fund)
The Trust Fund is used to account for private-purpose trust funds which have been donated to
the City for specific purposes and investment trust funds are used to report the external portion
of investment pools held in a qualifying trust.
Fund 0901 – Redevelopment Authority Fund (Component Unit)
The Redevelopment Authority was created in 2003 to account for the emphasis and focus on the
redevelopment and revitalization of the central city, downtown, and the riverfront. The
Redevelopment Authority is a separate legal authority from the City and is reported as a
Component Unit in the City’s Annual Financial Report.
Relationship between Budgeting and Accounting
This budget is adopted on a basis consistent with GAAP (Generally Accepted Accounting
Principles), except for certain items that are adjusted on the city’s accounting system at fiscal
year-end. During the year the city’s accounting system reflects changes in the budget approved
by the Common Council, typically an increase in estimated revenue and appropriation upon
notification of grants or gifts. Department heads monitor budget to actual expenses via
accounting system reports on a monthly basis.
Page 29 of 442
The major differences between this adopted budget and GAAP for governmental funds ar e: a)
certain revenues and expenditures, (e.g., compensated absences) not recognized for budgetary
purposes are accrued (GAAP); b) supply inventory and self-insurance contributions are
recognized as expenditures for budgetary purposes only. Proprietary F und differences consist
of the following: a) certain items, e.g., principal expenses and capital outlay, are recorded as
expenditures for budgetary purposes as opposed to adjustments of the appropriate balance
sheet accounts (GAAP); b) depreciation is recorded as an expense (GAAP) and not recognized
for budgetary purposes.
Page 30 of 442
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