FY2023 Adopted Operating and Capital Budget

Fiscal 2023 Adopted Operating and Capital Budgets

Jan H. Gardner, County Executive

”‡†‡”‹… ‘—–› Maryland Government

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Frederick County, Maryland Fiscal 2023 Adopted Budget

CONTENTS

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INTRODUCTION Certificate of Award for Excellence ............................................................................................................................................................................................................ 3 Summary of Elected & Appointed Officials ............................................................................................................................................................................................................ 7 County Profile ............................................................................................................................................................................................................ 13 County Executive Budget Message ............................................................................................................................................................................................................ 21 Strategic Framework ............................................................................................................................................................................................................ 33 Budget Priorities ............................................................................................................................................................................................................ 38 Budget & Financial Policies ............................................................................................................................................................................................................ 43 Tax Rates ............................................................................................................................................................................................................ 51 Budget Process & Calendar ............................................................................................................................................................................................................ 57 BUDGETED FUNDS Fund Description and Structure ............................................................................................................................................................................................................ 61 Consolidated Budget Overview ............................................................................................................................................................................................................ 63 Consolidated Financial Schedule ............................................................................................................................................................................................................ 67 Fund Balance ............................................................................................................................................................................................................ 69 Long Range Financial Plan ............................................................................................................................................................................................................ 73 Debt ............................................................................................................................................................................................................ 75 General Fund General Fund Pie Charts ............................................................................................................................................................................................................ 81 General Fund Summary ............................................................................................................................................................................................................ 82 General Fund Revenues ............................................................................................................................................................................................................ 84 General Fund Expenditures ............................................................................................................................................................................................................ 89 Special Revenue Funds-Operating Special Revenue Funds Overview ............................................................................................................................................................................................................ 99 Agricultural Preservation ............................................................................................................................................................................................................ 100 Grants ............................................................................................................................................................................................................ 102 Hotel Room Rental Tax ............................................................................................................................................................................................................ 104 Electric Lighting Districts ............................................................................................................................................................................................................ 106 Housing Inititatives ............................................................................................................................................................................................................ 108 Opioid Abatement ............................................................................................................................................................................................................ 110 Debt Service-General Government ............................................................................................................................................................................................................ 112 Economic Development Loans ............................................................................................................................................................................................................ 114

Frederick County, Maryland Fiscal 2023 Adopted Budget

CONTENTS

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Enterprise Funds Enterprise Funds Overview ............................................................................................................................................................................................................ 119 Comprehensive Care Facilities ............................................................................................................................................................................................................ 120 Bell Court ............................................................................................................................................................................................................ 122 Solid Waste Management ............................................................................................................................................................................................................ 124 Water & Sewer Management ............................................................................................................................................................................................................ 126 Internal Service Funds Internal Service Funds Overview ............................................................................................................................................................................................................ 131 Fleet Services ............................................................................................................................................................................................................ 132 Voice Services ............................................................................................................................................................................................................ 134 Worker's Compensation ............................................................................................................................................................................................................ 136 Fiduciary Funds Fiduciary Funds Overview ............................................................................................................................................................................................................ 141 Pension Trust-Employees Plan ............................................................................................................................................................................................................ 142 Pension Trust-Uniformed Plan ............................................................................................................................................................................................................ 144 Other Post Employment Benefits Trust ............................................................................................................................................................................................................ 146 Length of Service Award Program Trust ............................................................................................................................................................................................................ 148 Capital Projects Fund Capital Projects Fund Overview ............................................................................................................................................................................................................ 153 Capital Budget ............................................................................................................................................................................................................ 154 Capital Operating Costs ............................................................................................................................................................................................................ 157 Special Revenue Funds-Capital Special Revenue Funds-Capital Overview ............................................................................................................................................................................................................ 163 Parks Acquistion/Development ............................................................................................................................................................................................................ 164 Impact Fees/School Mitigation ............................................................................................................................................................................................................ 166 School Construction ............................................................................................................................................................................................................ 168 Component Units Component Units Overview ............................................................................................................................................................................................................ 173 Board of Education ............................................................................................................................................................................................................ 174 Frederick Community College ............................................................................................................................................................................................................ 176 Frederick County Public Libraries ............................................................................................................................................................................................................ 178

Frederick County, Maryland Fiscal 2023 Adopted Budget

CONTENTS

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ORGANIZATIONAL BUDGETS Organizational Chart ............................................................................................................................................................................................................ 183 County Divisions County Administration ............................................................................................................................................................................................................ 187 County Council ............................................................................................................................................................................................................ 213 Sheriff ............................................................................................................................................................................................................ 221 State's Attorney ............................................................................................................................................................................................................ 237 Courts ............................................................................................................................................................................................................ 245 Orphan's Court ............................................................................................................................................................................................................ 257 County Attorney ............................................................................................................................................................................................................ 263 Finance ............................................................................................................................................................................................................ 273 Human Resources ............................................................................................................................................................................................................ 287 Interagency Information Technology ............................................................................................................................................................................................................ 299 Planning & Permitting ............................................................................................................................................................................................................ 309 Emergency Management ............................................................................................................................................................................................................ 321 Fire and Rescue ............................................................................................................................................................................................................ 331 Volunteer Fire and Rescue ............................................................................................................................................................................................................ 345 Animal Control ............................................................................................................................................................................................................ 357 Citizens Services ............................................................................................................................................................................................................ 365 Senior Services ............................................................................................................................................................................................................ 387 Health Services ............................................................................................................................................................................................................ 395 Parks & Recreation ............................................................................................................................................................................................................ 411 Public Works ............................................................................................................................................................................................................ 421 Transit Services ............................................................................................................................................................................................................ 441 Comprehensive Care Facilities ............................................................................................................................................................................................................ 449 Water and Sewer Utilities ............................................................................................................................................................................................................ 457 Solid Waste Management and Recycling ............................................................................................................................................................................................................ 469 Independent Agencies ............................................................................................................................................................................................................ 479 Non-Departmental ............................................................................................................................................................................................................ 507 Unassigned ............................................................................................................................................................................................................ 527 Budgeted Positions and Full-Time Equivalents (FTEs) Budgeted Positions and Full-Time Equivalents (FTEs) ............................................................................................................................................................................................................ 533

Frederick County, Maryland Fiscal 2023 Adopted Budget

CONTENTS

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CAPITAL IMPROVEMENT PROGRAM Overview ............................................................................................................................................................................................................ 565 Capital Improvement Program Summary ............................................................................................................................................................................................................ 568 APPENDIX Glossary ............................................................................................................................................................................................................ 575 Acronyms ............................................................................................................................................................................................................ 581 Ordinances ............................................................................................................................................................................................................ 587

INTRODUCTION

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The Government Finance Officers Association is pleased to announce that the County of Frederick, Maryland has received the *)2$¶V 'LVWLQJXLVKHG %XGJHW 3UHVHQWDWLRQ $ZDUG The award represents a significant achievement by the entity. It reflects the commitment of the governing body and staff to meeting the highest principles of governmental budgeting. In order to receive the budget award, the entity had to satisfy nationally UHFRJQL]HG JXLGHOLQHV IRU HIIHFWLYH EXGJHW SUHVHQWDWLRQ 7KHVH JXLGHOLQHV DUH GHVLJQHG WR DVVHVV KRZ ZHOO DQG HQWLW\¶V EXGJHW serves as:

5 a policy document 5 a financial plan

5 an operations guide 5 a communications device

Budget documents must be rated proficient in all four categories, and in fourteen mandatory criteria within those categories, to receive the award.

Government Finance Officers Association of the United States and Canada (GFOA) presented a Distinguished Budget Presentation Award to County of Frederick, Maryland, for its Annual Budget for the fiscal year beginning July 1, 2021. In order to receive this award, a governmental unit must publish a budget document that meets program criteria as a policy document, as a financial plan, as an Operations guide, and as a communications device. This award is valid for a period of one year only. We believe our current budget continues to conform to program requirements, and we are submitting it to GFOA to determine its eligibility for another award.

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SUMMARY OF ELECTED AND APPOINTED OFFICIALS

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Frederick County, Maryland Summary of Elected and Appointed Officials

County Executive Jan H. Gardner

County Council From left to right ± Steve McKay (District 2), Kai Hagen (At Large), Jerry Donald (District 1), President M.C. Keegan Ayer (District 3), Phil Dacey (At Large), Jessica Fitzwater (District 4), and Vice President Michael Blue (District 5)

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Frederick County, Maryland Summary of Elected and Appointed Officials

ELECTED POSITIONS: Sheriff &KDUOHV $ ³&KXFN´ -HQNLQV

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J. Charles Smith III, Esquire

Administrative Judge of the Circuit Court Honorable Julie R. Stevenson Solt Sandra K. Dalton, Clerk __________________________________________________________________________________________ APPOINTED POSITIONS: &RXQW\ ([HFXWLYH¶V &DELQHW Chief of Staff Margaret Nusbaum Director, Education and Special Initiatives Janice Spiegel Director, Government Affairs Joy Schaefer Chief Administrative Officer Rick Harcum Deputy Chief Administrative Officer Monica Bearden Chief Financial Officer Lori Depies, CPA Chief Equity & Inclusion Officer Michael W. Hughes County Attorney Bryon Black, Esquire Director, Budget Kelly Weaver, CPA Director, Communications & Public Engagement Vivian Laxton Director, Economic Development Vacant Division Director, Animal Control David Luckenbaugh Division Director, Citizens Services Christine Cambareri Kay Division Director, Emergency Management John Markey Division Director, Energy & Environment Shannon Moore Division Director, Finance Erin White, CPA Division Director / Fire Chief, Fire & Rescue Services Tom Coe Division Director / Health Officer, Health Services* Barbara Brookmyer, MD, MPH Division Director, Human Resources Wayne Howard Division Director / CIO, Interagency Information Technologies David Maginnis Division Director, Internal Audit* Tricia Reaver, CPA Division Director, Parks & Recreation Jeremy Kortright Division Director, Planning & Permitting Steven Horn Division Director, Public Works Rick Harcum (Acting) Division Director, Senior Services Kathy Schey Division Director, Solid Waste & Recycling Phil Harris Division Director, Transit Services Roman Steichen Division Director, Volunteer Fire & Rescue Services M. Shane Darwick Division Director, Water & Sewer Utilities Mark Schweitzer µ * Positions are appointed by other agencies Clerk of the Circuit Court

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Frederick County, Maryland Summary of Elected and Appointed Officials

COMPONENT UNITS OF GOVERNMENT: Board of Education

President

Brad Young Sue Johnson Liz Barrett David Bass Jason Johnson Jay Mason Karen Yoho Lucas Tessarollo

Vice President

Member Member Member Member Member

Student Member

Superintendent Cheryl L. Dyson __________________________________________________________________________________________ Frederick Community College Board of Trustees Chairperson Vice Chairperson

Carolyn Kimberlin Tom Lynch, Esquire Ellis Barber Gary Fearnow Theodore M. Luck Dr. April Miller Dr. John Molesworth Dr. Annesa Cheek

Trustee Trustee Trustee Trustee Trustee President

__________________________________________________________________________________________ Frederick County Public Library Board Chairperson Jennifer '¶$JRVWLQR Vice Chairperson Shemica Sheppard Secretary Suzette White Member Terri Lancaster Member Galen Mayfield Member 0LFN 2¶/HDU\ Member Karyn Spertzel Public Libraries Director James Kelly

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COUNTY PROFILE

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Statistics provided by County Planning & Permitting Division, County Geographical Information Systems, Frederick County Public

Works, Frederick County Public Schools, and State Department of Assessments & Taxation staff. Population data is as of 7/1/21 (latest data) and was obtained from Census co-est2021-pop-24

Agriculture information is provided by the US Census of Agriculture. Income statistics, industry information provided by U.S. Census.gov. Employment data provided by MD Department of Labor and by the Office of Economic Development. Water & Sewer data is as of June 2022 and was provided by the Division of Water and Sewer Utilities.

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COUNTY EXECUTIVE BUDGET MESSAGE

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Jan H. Gardner County Executive

FREDERICK COUNTY GOVERNMENT OFFICE OF THE COUNTY EXECUTIVE

April 14, 2022 Dear Frederick County Citizens: I am pleased to present the Fiscal Year 202 operating and capital budgets for Frederick County, P\ HLJKWK DQG ILQDO EXGJHW DV &RXQW\ ([HFXWLYH . The budget tells the story of who we are, what we value, and who we want to become. As a community, we see our yesterday, today, and tomorrow in the budget choices we make. Our yesterday began in 2014 with the beginning chapter of our new Charter form of government. At the time, our economy was recovering from the great recession and county government was in dire shape. 0\ LQLWLDO WDVN DV WKH ILUVW &RXQW\ ([HFXWLYH ZDV WR VWDQG XS &KDUWHU JRYHUQ ment, ensure open and transparent processes, establish good management, and restore fiscal responsibility. My administration inherited a structural deficit, reserve funds that had been raided and one time funds used for on JRLQJ H[SHQVHV D VFKRRO V\VWHP that had been funded at the lowest level allowed by law, and a reduction of almost 200 county positions, including in public safety, all while the county s population continued to grow. The stage was also set for significant residential growth without needed infrastructure due to a series of bad land use decision locked in place by 20 or year developer contracts. Today, we are in a better place and the future looks bright . Frederick County Government is well managed and delivers effective and efficient services to our residents. Thanks to sound financial management, Frederick County has restored and bolstered reserve funds, fully funded our pension obligations, eliminated the structural deficit, and earned a coveted AAA bond rating from all three rating agencies for the first time in the county s history. These decisions allowed Frederick County to save millions of dollars to invest in needed schools, roads, fire stations, libraries and parks, all while focused on taking care of people. Frederick County has lived within our means and Charter government has delivered. The budget I am proposing shapes a prosperous tomorrow . It reflects our values for public education, safe communities, our seniors, and for preserving our high quality of life. The budget is the mechanism that funds our shared vision in Livable Frederick. Framed around four pillars our economy, our community, our health, and our environment Livable Frederick is our roadmap to a prosperous and healthy future for everyone in Frederick County. Financial Highlights 7KH )< RSHUDWLQJ DQG FDSLWDO EXGJHW s position Frederick County not only for today, but for the future. Our budget choices deliver on the promise of Livable Frederick and continue our commitment to conservative fiscal policies to SURWHFW FRXQW\ WD[SD\HUV .

Frederick County: Rich History, Bright Future Winchester Hall Ɣ 12 East Church Street, Frederick, MD 21701 Ɣ 1 600 Ɣ )D[ 600 1050 www.FrederickCountyMD.gov

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x 1R WD[ LQFUHDVHV For the 8th year in a row, the entirety of my administration, the budget maintains H[LVWLQJ SURSHUW\ WD[ DQG LQFRPH WD[ UDWHV x Our long term pension liabilities and OPEB (other post employment benefits or retiree health benefits) are 100% fully funded. x Reserve funds have increased from 5% to 8% of budget. x Strong, conservative fiscal management, our AAA bond rating, restored reserves, and the elimination of the structural deficit have allowed Frederick County Government to do more ZLWKRXW UDLVLQJ WD[HV The )< budget invests in what matters most keeping the promise of public education, ensuring safe communities, improving public health, valuing our rich history and protecting our agricultural heritage, and advancing the overarching vision and priorities found in Livable Frederick. The budget is people centered with a focus on ensuring a high quality of life and a thriving robust economy. Budget Highlights Record Investment in Education Over $100 Million above Maintenance of Effort

The proposed budget makes a powerful, record investment in public education with $35 million in new funding for our K 12 public schools. I am proud that my administration has invested over $100 million in public education above the minimum level required by law.

This PLOOLRQ LQYHVWPHQW LQFOXGHV million in ongoing operating dollars to ensure the best teachers and staff in our classrooms, to support recovery from the pandemic, and to deliver positive educational outcomes for students. $1.6 million in one time funding is provided to purchase Chromebooks for all elementary students. More than 1,700 new students have enrolled in Frederick County Public Schools. This level of enrollment growth is unmatched elsewhere in Maryland. Nearly 5,000 new students joined our public schools during my WZR WHUPV DV &RXQW\ ([HFXWLYH a 12.5% increase in enrollment! To provide school capacity for these new students and those who arrived before them, the capital budget makes a record investment in school construction and renovation, advancing nine projects LQ )< DORQH x A new, larger Waverley Elementary School is under construction and will open to students this fall.

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x A new replacement Brunswick Elementary School ZLOO EUHDN JURXQG QH[W PRQWK DQG ZLOO open WR VWXGHQWV LQ WKH IDOO RI . This brand new state of the art school will include an oversized community park and recreation gymnasium, the first in this part of the county. x Two new replacement elementary schools Green Valley Elementary and Valley Elementary are advanced by up to two years, with design in the upcoming fiscal year and construction the following year. These two schools will address overcrowding and replace older open space classrooms. x Limited renovations projects are underway at Thurmont Elementary and will begin soon at Monocacy Elementary. x $ seat addition to Crestwood Middle School will advance and be fully financed with developer funding a real accomplishment to build needed school capacity without a SHQQ\ RI WD[SD\HU GROODUV

Additionally, the capital budget provides funding for feasibility studies for Yellow Springs Elementary and the entire Middletown Campus. Advancing three new school projects on the Middletown School Campus will likely H[FHHG PLOOLRQ 7R HQVXUH WKH financial viability of such a large comprehensive project, $22 million of funding will be earmarked in a special reserve fund to advance the first phase

of the Middletown Campus project once the feasibility study is completed. Higher Education

The budget provides over $1.0 million for Frederick Community College to improve pay for all eligible staff and to keep college affordable. Tuition will be frozen for the upcoming academic year to ensure students seeking opportunity through higher education or preparing for a changing workplace can take advantage of the opportunity. Libraries Our libraries support life long learning, educational needs and homeschooling programs. People love our libraries and their popularity continues to grow! The budget allows Frederick County Public Libraries to support additional teen programming and provide staffing for our newest library, the Middletown Branch Library, which will break ground soon. I am pleased to share a plan to accelerate the West Frederick Branch Library by up to five years by locating the branch at the newly purchased county owned Himes Avenue property. This location saves both time and money. A community meeting to discuss this needed library branch will be held in May.

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Safe Communities Everyone deserves to live in a safe community. Safe communities are the result of good planning, the hard work and dedication of our public safety employees, and the support of our community. Keeping our community safe is a fundamental responsibility of local government. Our public safety agency budgets are the second largest component of the budget after education. Combined, education and public safety, make up about 70% of WRWDO EXGJHWHG H[SHQGLWXUHV

Livable Frederick places a real focus on public safety and so does the county budget. I am proud that my administration has made public safety a high priority and has valued our public safety workforce with competitive pay, benefits, training and equipment. The budget honors our contracts with our public safety unions and continues to add positions to ensure a timely response to citizen calls for assistance.

During my terms in office, the county budgets have added more than 200 new firefighter/EMT positions numerous positions in law enforcement and corrections and added call takers and communication specialists DW 1 1 to meet increased call volume as our population grows. Highlights of the operating budget include more than $500,000 for body cameras for Sheriff s Deputies. These funds support the first phase of the implementation of body cameras for all law enforcement agencies in Frederick County, including within our municipalities, by funding the State s Attorney s Office to review, use and maintain all footage. The capital budget includes funding for the purchase of the camera equipment and the accompanying technology, software and licensing. The budget supports increases in training, employee physicals, psychological services and a new wellness program in the Sheriff s Office. The budget funds the operations of the new Police Accountability Board. Healthy Frederick County A high quality of life depends upon good health. Supporting a safer and healthier Frederick County is a goal of Livable Frederick. Frederick County has made great strides during my administration to develop a robust continuum of care for behavioral health and substance misuse. x Mobile Crisis A year ago, we announced a 24/7 Mobile Crisis team to bring the right services at the right time to a crisis situation, with the ultimate goal to deliver the best outcomes for people. The mobile crisis team brings social workers and behavioral health specialists to respond with law enforcement or to a call to 2 1 1. Mobile crisis has received high praise from law enforcement and from the people they have assisted. The FY2 budget H[SDQGV WKLV VHUYLFH WR HQVXUH D UREXVW UHVSRQVH FRXQW\ZLGH x Mobile Community Healthcare 7KH EXGJHW DOVR H[SDQGV WKH 'LYLVLRQ RI )LUH 5HVFXH Services Mobile Community Healthcare program by adding an additional EMT and a

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