HomeMy WebLinkAboutStaff Report 2512-5662CITY OF PALO ALTO
CITY COUNCIL
Special Meeting
Monday, February 23, 2026
Council Chambers & Hybrid
5:30 PM
Agenda Item
8.FY 2026 Mid-Year Budget Review and Approve 1) Budget Amendments in Various Funds,
and 2) a $10.0 Million Additional Discretionary Payment (ADP) from the PARS Pension
Trust Staff Presentation
City Council
Staff Report
From: City Manager
Report Type: ACTION ITEMS
Lead Department: Administrative Services
Meeting Date: February 23, 2026
Report #:2512-5662
TITLE
FY 2026 Mid-Year Budget Review; and Approve 1) Budget Amendments in Various Funds, and 2)
a $10.0 Million Additional Discretionary Payment (ADP) from the PARS Pension Trust
RECOMMENDATION
Staff recommends that the City Council receive the FY 2026 mid-year budget review and:
1. Approve amendments to the Fiscal Year 2026 Budget Appropriation for the funds and
capital projects identified in Attachment A, Exhibits 1 and 2 (requires 2/3 approval);
2. Consolidate the remaining $6.0 million in the Uncertainty Reserve with the Budget
Stabilization Reserve (BSR) to streamline reserve administration, closing the Uncertainty
Reserve; and
3. Authorize the City Manager or their designee to transmit $10.0 million from the City’s
PARS Pension Trust to CalPERS as an Additional Discretionary Payment (ADP)
EXECUTIVE SUMMARY
This report provides the financial status of major City funds as of December 31, 2025, and
presents strategic actions to manage immediate revenue fluctuations while addressing long-
term structural liabilities. Overall, the General Fund is tracking below adopted revenues and
within expenditure levels. Significant revenue realignments are necessary to reflect a $9.0
million decline in sales tax and $1.3 million downward revision of property tax. Consistent with
data reviewed by the Finance Committee in November 20252. Total General Fund revenue
estimates are recommended for reduction by $10.3 million to align with updated county and
market forecasts ($6.3 million ongoing, and $4 million one-time). While revenues for charges
for services, permits & license, transient occupancy tax and document transfer tax revenue
receipts through Q2 are stronger than prior year trends, these sources are less predictable and
conservatively these FY 2026 budget estimates are not revised upwards at this time. This
hopefully provides revenue opportunities in FY 2027 budget development and staff will closely
monitor Q3 and Q4.
To streamline reserve administration and prepare for a General Fund projected $14.9 million
structural deficit in FY 20271, staff and the Finance Committee recommends consolidating the
Uncertainty Reserve ($6.0 million balance) with the Budget Stabilization Reserve via a technical
adjustment. Combined, the BSR balance is projected to end FY 2026 at $54.7 million (17.8%),
which is $2.1 million below the Council’s 18.5% target ($56.8 million). This conservatively
assumes the consolidation of the reserves offset by the $10.3 million reduction in estimated tax
revenues. If the reserve is offset by the ongoing $6.3 million reduction in estimated tax
revenues, excluding the contingent one-time sales tax reduction (of $4 million), then the
projected BSR would be $58.7 million or 19.1%. There is a lower probability of using $2.0
million BSR previously identified in LRFF for FY 2027 budget balancing with the current
projection falling below target levels.
2, this proactive step
implements the City Retiree Benefit Funding Policy (Policy) and is integral to the FY 2027 budget
balancing strategy.
BACKGROUND
3. These reports provide the technical baseline for the City’s current operations
1 City Council, January 13, 2026; Report #2511-5473,
https://recordsportal.paloalto.gov/WebLink/DocView.aspx?id=84151&dbid=0&repo=PaloAlto&searchid=87b8885
8-9fbd-4c06-82ac-9564f9076e1b
2 Finance Committee, November 18, 2025; #2511-5392,
https://recordsportal.paloalto.gov/WebLink/DocView.aspx?id=83886&dbid=0&repo=PaloAlto&searchid=643b9fb0
-0e06-4d6d-9fee-6c01ce0f9094
3 City Council, January 20, 2026; #2512-5601: FY 2027-FY 2036 Long Range Financial Forecast,
https://recordsportal.paloalto.gov/WebLink/DocView.aspx?id=85271&dbid=0&repo=PaloAlto&searchid=a0926757
-5af0-466d-b59c-ae4de17e166d
and serve as the "starting point" for developing a structurally balanced budget for the
upcoming fiscal years7.
8.
9.
ANALYSIS
7 City Council Staff Report, January 13, 2025; #2412-3846,
https://recordsportal.paloalto.gov/WebLink/DocView.aspx?id=83197&dbid=0&repo=PaloAlto&searchid=d5f2eb36
-85a1-47b6-91e4-e6ebf0093346&cr=1
8 Finance Committee, November 18, 2025; #2511-
5392https://recordsportal.paloalto.gov/WebLink/DocView.aspx?id=83886&dbid=0&repo=PaloAlto&searchid=5f89
f3e9-39ff-4f54-b84c-1bdb84a084ff
9 City Council, January 20, 2026; Report #2510-5352,
https://recordsportal.paloalto.gov/WebLink/DocView.aspx?id=85264&dbid=0&repo=PaloAlto&searchid=51ce8927
-a6eb-4f27-966a-aecc716263c4
I. General Fund Mid-Year Budget Adjustments
The Fiscal Year 2026 General Fund Mid-Year Budget Review aligns the City’s budget with
updated financial information while preserving the long-term stability established in the
January 2026 Long-Range Financial Forecast (LRFF). While General Fund expenditures are
tracking within adopted levels, significant adjustments are required on the revenue side to
account for a projected $10.3 million reduction in sales tax ($9.0 million reduction) and
property tax ($1.3 million reduction). This sales tax realignment results from State (CDTFA)
regulation changes impacting the leasing and auto sectors and updated property tax
projections. The conservative $9.0 million reduction in sales tax reflects both an estimated
ongoing loss of $5 million in annual receipts as well as a contingent one-time loss estimated at
$4 million for prior year adjustments. Depending upon CDTFA determination, the prior year
adjustment could range between $0 and $4 million. Consolidating the General Fund reserves is
a technical adjustment yielding a projected combined BSR balance of $54.7 million or 17.8%,
which excludes the full revenue reduction $10.3 million in FY 2026. If the $4 million prior year
sales tax adjustment does not occur, then the revenue reduction may be $6.3 million in FY
2026, resulting in projected BSR of $58.7 million or 19.1%.
The recommended adjustments for the General Fund include a combination of additional
funding for operational needs and technical alignments to reflect actual fiscal activity.
Additional funding is proposed for the Public Works Department (PWD) to address critical
equipment needs for the Urban Forestry section. Realignment of the grant award to the
Chamber of Commerce as the fiscal sponsor of the former 3rd Thursday event series to the Palo
Alto Recreation Foundation which is now coordinating an event series on California Ave.
Technical adjustments include the prior revenue adjustments mentioned for major taxes and
the consolidation of the Uncertainty Reserve with the BSR. Additionally, the Utilities
Department (UTL) requires a true-up of the Electric Equity Transfer, while the Fire Department
(FIR) recognizes revenue related to strike team deployments and the annual funding
reconciliation with Stanford University. These technical actions also include an expenditure
realignment for Fire to offset strike team costs and a bank fee adjustment in the Planning and
Development Services Department (PDS) to align with current volume. These items are
summarized in the Table 1.
Summary of General Fund Adjustments Net $ Impact
(Cost)/Benefit
Technical Adjustments:
Sales Tax Projection Update - Revenue Reduction $(9.0) M
Property Tax Projection Update - Revenue Reduction $(1.3) M
Uncertainty Reserve Consolidation w/BSR $6.0 M
UTL: Electric Equity Transfer (Technical adjustment)$0.2 M
FIR: Stanford University FY 2025 Reconciliation Revenue $0.1 M
PDS: Gas Water Heater Subsidy - Revenue Reduction $(0.1) M
Subtotal Technical Adjustments:$(4.1) M
Use of Budget Stabilization Reserve $4.1 M*
(BSR at 17.8% and $2.1 M below the 18.5% target level)
Total Net Impact General Fund Mid-Year Adjustments $0.0 M
II. Pension Liability Management
As part of implementing the City Retiree Benefit Policy and managing pension liability, staff
recommends authorizing a $10.0 million Additional Discretionary Payment (ADP) from the
Section 115 Pension Trust to CalPERS. The remaining Section 115 Trust and planned future
contributions and earnings are projected to achieve the Policy outcome of reaching 90% funded
status within 15 years of the approved Policy. This proactive measure, reviewed and
recommended by the Finance Committee on November 18, 2025, aligns with the Policy and is
integral to the multi-year financial plan.
The Section 115 Pension Trust was established to provide the City with a dedicated vehicle to
manage pension volatility and reduce the Unfunded Accrued Liability (UAL). By transferring
these funds to CalPERS as an ADP, the City effectively reduces the principal balance of its
pension debt, leading to long-term interest savings and lower annual required contributions in
future years. This action is particularly critical given the projected $14.9 million structural deficit
beginning in FY 2027, as it helps flatten the trajectory of rising benefit costs.
III. Enterprise and Other Fund Adjustments
Beyond the General Fund, the Mid-Year Budget Review includes a series of technical and
operational adjustments across the City’s Enterprise, Internal Service, Special Revenue, and
Capital funds. These actions are required to align appropriations with updated revenue sources,
ensure compliance with grant timelines, and accurately reflect Council-directed changes to
capital projects. A summary are included in Table 2.
Within the Enterprise Funds, the most significant financial adjustment occurs in the Fund 526
Wastewater Treatment Fund, where staff recommends recognizing $17.0 million in revenue
from the City of Mountain View. This revenue reflects Mountain View’s proportional share of
the Advanced Water Purification System (AWPS) capital project, based on a funding agreement
executed following the adoption of the FY 2026 budget. Additionally, this fund requires an
increase in operating appropriations to address higher-than-anticipated chemical costs for
treatment and laboratory operations, driven by rising vendor prices. In the Fund 530 Airport
Fund, a minor adjustment is proposed to resource the Unleaded Fuel Transition Plan, providing
necessary consultant services to monitor aircraft lead emissions and track the transition to
unleaded fuel in alignment with City Council priorities.
Internal Service Funds require adjustments to address rising fixed costs and technical carry-
forward corrections. The Fund 689 General Liabilities Insurance Fund requires a $0.9 million
increase in appropriation to cover a significant 30 percent rise in excess liability insurance
premiums, a trend consistent with the broader municipal insurance market. In the Fund 682
Information Technology Fund, staff recommends a technical re-appropriation of $230,000 to
complete public safety radio infrastructure upgrades. These funds were not correctly carried
forward from the previous fiscal year, and this action ensures the department has the authority
to satisfy active purchase orders for critical public safety communication equipment.
Additionally, the Fund 687 General Benefits Fund includes a technical true-up to align PARS
supplemental pension contributions with actual departmental allocations, resulting in a
$83,000 reduction to the fund balance.
Table 2: Enterprise and Other Fund Mid-Year Adjustments
Fund Name Net $ Impact
(Cost)/Benefit
Enterprise Funds:
Fund 513 Electric Supply Fund (Equity Transfer)$(157) K
Fund 523 Electric Fund (Cap and Invest Transfer to CIP)$(258) K
Fund 526 Wastewater Treatment Fund (AWPS Revenue & Chemical Costs)$16,843 K
Fund 530 Airport Fund (Unleaded Fuel Transition Plan)$(20) K
Internal Service Funds:
Fund 681 Vehicle Replacement & Maintenance Fund (Bucket Truck Rental)$(72) K
Fund 682 Information Technology Fund (Radio Infrastructure)$(230) K
Fund 687 General Benefits Fund (115 Trust Transfer/PARS True-Up)$(83) K
Fund 689 General Liabilities Insurance Fund (Excess Liability Costs)$(900) K
Special Revenue & Capital Funds:
Fund 231 Gas Tax Fund (Revenue/Transfer True-Up)$10 K
Fund 232 Community Development Block Grant (Return to Fund Balance)$63 K
Fund 233 Housing In Lieu / Residential (Housing Program)$(114) K
Fund 236 University Ave Parking Fund (Parking Services)$0 K
Fund 248 Law Enforcement Services (ALPR Grant Cleanup)$(36) K
Fund 253 Local Housing Allocation (Grant Re-appropriation)$(244) K
Fund 471 General Fund Capital Improvement Fund (Project Savings &
Transfers)$200 K
Total Net Impact Enterprise and Other Funds $15,002 K
IV. Future Outlook and Governmental Efficiency
The FY 2026 Mid-Year Budget Review balances the General Fund, closing the projected revenue
gap through the limited use of the reserves and technical realignments. During FY 2026, budget
reductions were made by Council on September 8, 202513 to improve the structural deficit by
reducing FY 2026 budget spending by approximately $6 million with $3.4 million on-going for 3
years (reduce $2.4 million General Fund and $1 million CIP) and $2.8 million one-time (reduce
$0.6 million General Fund and $2.2 million CIP). This fiscal discipline and more solutions are
required to balance the additional forecasted FY 2027 structural deficit of $14.9 million, which
continues through FY 2032.
Increased government efficiency will be a greater focus in FY 2027 budget development,
transparency and management in alignment with the 2026 City Council priority. Staff are
working to identify, develop, and implement governmental efficiencies including but not limited
to: streamlining operations, reducing professional service costs and improving contract
management, increasing revenues, and improving facility utilization. Priority initiatives will be
reported in the Council Priorities and Objective updates, City Manager budget transmittal, and
budget presentations.
Staff will return to the Finance Committee and City Council in May 2026 with a balanced
Proposed Budget with solutions ensuring that Palo Alto maintains its fiscal health while
delivering high-quality services to the community.
FISCAL/RESOURCE IMPACT
Approval of the attached transactions is required to amend the FY 2026 budget appropriation.
With the approval of these amendments, the projected ending balance of the General Fund
Budget Stabilization Reserve (BSR) is $54.7M, or 17.8% of expenditures. While this is within the
15% to 20% policy range, it is $2.1 million below the City Council’s 18.5% target of $56.8M.
Notably, if the $4M one-time sales tax adjustment does not occur, the ending BSR balance is
projected to reach $58.7M, or 19.1%.
13 City Council, September 8, 2025; Agenda Item#18; 2506-
4818,https://recordsportal.paloalto.gov/WebLink/DocView.aspx?id=83564&dbid=0&repo=PaloAlto&searchid=0cb
9ea95-968d-4d59-8d45-249d0c4401e3
The projected changes to the fund balance for all other funds including Capital Funds,
Enterprise Funds, Internal Services Funds, and Special Revenue Funds are outlined in
Attachment A and accompanying exhibits and impacts to fund balances in these fund types are
summarized in the table below.
Table 3: Summary of Impacts to Fund Balances (Non-General Fund)
Fund Type / Fund Name Net Impact to Fund
Balance
Enterprise Funds
Fund 513 Electric Supply Fund $(0.16) M
Fund 523 Electric Fund $(0.26) M
Fund 526 Wastewater Treatment Fund $16.84 M
Fund 530 Airport Fund $(0.02) M
Enterprise Funds Subtotal $16.40 M
Internal Service Funds
Fund 681 Vehicle Replacement & Maintenance Fund $(0.07) M
Fund 682 Information Technology Fund $(0.23) M
Fund 687 General Benefits Fund $(0.83) M
Fund 689 General Liabilities Insurance Fund $(0.90) M
Internal Service Funds Subtotal $(1.20) M
Special Revenue Funds
Fund 231 Gas Tax Fund $(0.01) M
Fund 232 Community Development Block Grant Fund $0.06 M
Fund 233 Housing In Lieu / Residential $(0.11) M
Fund 236 University Ave Parking Fund $(0.00) M
Fund 248 Law Enforcement Services Fund $(0.04) M
Fund 253 Local Housing Allocation Fund $(0.24) M
Special Revenue Funds Subtotal $(0.34) M
Capital Funds
Fund 471 Capital Improvement Fund $0.20 M
Capital Funds Subtotal $0.20 M
Total Net Impact to All Other Funds $14.98 M
STAKEHOLDER ENGAGEMENT
on the Long Range Financial Forecast. During those sessions, staff provided detailed updates on
tax revenue trends and the long-term forecast, allowing for a collaborative review of the
challenges we face and the maneuvers proposed to keep the City’s finances in balance.
ENVIRONMENTAL REVIEW
ATTACHMENTS
APPROVED BY:
Revenues
Department FTE Adjustment Adjustment
GENERAL FUND (102)
Non-Departmental Technical Adjust: Projected Sales Tax Revenue Update
This action reduces General Fund revenue by $9 million to align with updated sales
tax forecast for $5 million ongoing reduction and $4 million contingent one-time prior
year adjustment. Primarily due to leasing and auto sales sector.
- (9,000,000)$ -$
Non-Departmental Technical Adjust: Projected Property Tax Revenue Update
This action reduces General Fund revenue to align with updated county and market
forecasts for property ($1.3 million reduction) taxes. Property tax growth is expected
to be lower than the original 6.1% projection, and sales tax estimates have been
adjusted down based on recent quarterly reports.
- (1,300,000)$ -$
Non-Departmental Technical Adjust: Eliminate Uncertainty Reserve
This action eliminates $6.0 million from the Uncertainty Reserve and returns these
funds to the Budget Stabilization Reserve (BSR). This serves as a strategic bridge to
mitigate projected revenue declines anticipated in Fiscal Years 2026 and 2027.
- -$ (6,000,000)$
Non-Departmental Technical Adjust: California Ave. Event Series (formerly Third Thursday Series)
This action formalizes the grant award of $40,000 in FY 2026 to the Palo Alto
Recreation Foundation, previously awarded to the Chamber of Commerce as the
fiscal sponsor of the former Third Thursday event series. As previously announced,
the grant previously awarded through the Non-Profit Phase I grant process, is being
evaluated for rebranding to better support the future vision of California Avenue
activations with PARF.
- -$ -$
Utilities Technical Adjust: FY 2025 Year-End Cleanup for the Electric Equity Transfer
This action adjusts the electric transfer to the General Fund following the release of
the FY 2025 ACFR. This update accounts for changes to PG&E’s return on equity rates
effective January 1, 2026, ensuring accurate financial alignment.
- 157,000$ -$
Fire Technical Adjust: Revenue from Stanford/Fire Response Services Agreement
This action recognizes $109,665 in the estimate for Charges for Services revenue
from the FY 2025 reconciliation process with Stanford University, which showed a
1.1% variance above the adopted budget. These funds have been billed per the terms
of the agreement.
- 109,665$ -$
Fire Technical Adjust: Salaries and Overtime Adjustment
This net-neutral action reallocates $1.25 million in projected salary savings to the
overtime budget. The department carried ten vacancies during the first half of the
fiscal year, necessitating overtime to maintain minimum staffing levels.
- -$ -$
Fire Technical Adjust: Revenue from Other Agencies/Overtime for Strike Teams
This action recognizes $489,382 in reimbursement revenue for participation in eight
strike teams. The request increases overtime and equipment budgets to align with
state-reimbursed costs for personnel and essential tools.
- 489,382$ 489,382$
CITY OF PALO ALTO
RECOMMENDED AMENDMENTS TO THE CITY MANAGER'S FY 2026 BUDGET
Expenses
ATTACHMENT A, EXHIBIT 1
Revenues
Department FTE Adjustment Adjustment
GENERAL FUND (102)
CITY OF PALO ALTO
RECOMMENDED AMENDMENTS TO THE CITY MANAGER'S FY 2026 BUDGET
Expenses
ATTACHMENT A, EXHIBIT 1
Fire Technical Adjust: Revenue from Other Agencies/Overtime for Fire Station 8
This action recognizes $229,660 in revenue under an agreement to staff Fire Station
8. An offsetting overtime expense is included to account for personnel costs
associated with this service contract.
- 229,660$ 229,660$
Library Technical Adjust: Grant Revenue/Library Programs
This action recognizes $13,195 in grant revenue from the Pacific Library Partnership
and the Howard Hughes Medical Institute. Funds support the Vintage Media Lab and
participation in the Northern California Digital Library Consortium.
- 13,195$ 13,195$
Planning & Dev.
Services
Technical Adjust: Development Services Bank Card Fees/Permits and Licenses
This action increases the budget for bank card fees by $120,000 due to increased
credit card usage by applicants. The expense is offset by revenue from plan check and
permit fees.
120,000$ 120,000$
Planning & Dev.
Services
Technical Adjust: Permits and Licenses Revenue/Gas Water Heater Subsidy
This action reflects a $50,000 reduction in anticipated revenue from Permits and
Licenses to incorporate the gas water heater permit fee subsidy, authorized by
Council resolution to support environmental goals.
(50,000)$
Fund Balance Adjustment to Fund Balance
This action adjusts the fund balance as a result of actions recommended in this report
and decreases the Budget Stabilization Reserve (BSR) projected for June 30, 2026 to
$54.7 million or 17.8%. **If the $4
million prior year sales tax adjustment does not occur, then the revenue reduction may be $6.3 million in FY 2026,
resulting in projected BSR of $58.7 million or 19.1% at FY 2026 year-end.
- -$ (4,083,335)$
GENERAL FUND (102) SUBTOTAL - (9,231,098)$ (9,231,098)$
Attachment B
B
Attachment B – Page 1 of 7
Preliminary FY 2026 2nd Quarter Financial Status
General Fund
Overall, the General Fund is tracking below the adopted revenue estimates and within the adopted
expenditure levels. Actual FY 2026 total revenues and expenditures increased by 9.0% and 2.9%
respectively compared to the same period in FY 2025. General Fund revenues increased overall
compared to the prior year, with growth observed in property tax, charges for services, transient
occupancy tax, utility user tax, permits and licenses, documentary transfer tax, and business tax.
Sales tax remained relatively flat. The adopted FY 2026 revenue budget expected even higher
revenue trends, and so a budget amendment is recommended to adjust the budget estimates to a
lower level. As previously discussed with Finance Committee and Council in the long range
financial forecast (LRFF), this FY 2026 Mid-Year recommend adjustments that are measured and
aligned with the City’s overall financial outlook.
Revenues
The FY 2026 Adjusted revenue budget, prior to changes recommended in the Mid-Year Review,
totals $270.3 million (excluding Operating Transfers‐in), of which $107.0 million or 39.6% of the
budget, has been collected as of the end of the 2nd quarter compared to 37.8% collected in prior
year. Revenue receipt is seasonal with non-linear collection. Business Tax is included in totals and
used for specific programs related to public safety, affordable housing and homeless services, and
transportation and grade separation projects, per Council direction. A Reserve for Business Tax
Revenue is used to ensure that business tax revenue is accounted separately from the Budget
Stabilization Reserve (BSR) to be used in accordance with approved programs in the previously
mentioned areas.
Adjustments to align revenue estimates based on current experience through the first half of FY 2026
and forecasted through year-end are recommended in this Mid‐Year Budget Review, including
adjustments to reduce revenues by $10.3 million for Sales Tax ($9.0 million decrease) and
Property Tax ($1.3 million decrease).
Table 1 below outlines General Fund revenue performance, as of the end of the 2nd quarter,
December 31, 2025, compared to the adjusted budget. The adjusted budget does not assume
staff’s recommended adjustments presented in this Mid‐Year report as these changes have not
been approved by the City Council.
Attachment B
B
Attachment B – Page 2 of 7
Table 1
Property Tax
The FY 2026 Budget is $73.6 million, a $4.2 million or 6.1% increase from the FY 2025 actual
receipts of $69.4 million. Property Tax revenues are collected and allocated by the County and are
received by the City in two periods during the fiscal year, generally beginning in late November
and again in the Spring. The County’s November forecast is consistent with assumptions included
in the Long Range Financial Forecast, which was developed using County data available as of
September. At this stage, the County has published the tax roll and Staff recommends aligning the
City budget revenues accordingly thereby reducing FY 2026 Property Tax estimates by $1.3 million,
from $73.6 million to $72.3 million. With this adjustment, Property Tax revenues are still projected
to increase year over year, though at a more moderate level than the adopted budget.
Educational Revenue Augmentation Fund (ERAF) - The City has set aside $7.1 million in reserves to
address ongoing uncertainty related to the calculation of ERAF distributions. This includes pending
litigation between Marin County and the California State Controller regarding the methodology
used to calculate excess ERAF, which could have broader implications for counties statewide. A
court hearing on this matter is expected to continue in March 2026. Staff will continue to monitor
developments and update assumptions as additional information becomes available.
Attachment B
B
Attachment B – Page 3 of 7
Sales Tax
The FY 2026 Adopted Budget is $36.4 million, an increase of 3.29% compared to the actual Sales
Tax receipts of $35.2 million in FY 2025. As of the 2nd quarter, actual receipts are 30.7%
compared to 28.2% of budget; however, this Midyear report includes a decrease of $9.0 million
in Sales Tax revenue, consistent with the assumptions previously presented to the Finance
Committee on November 18, 20251, and incorporated into the FY 2027-36 Long Range Financial
Forecast.
The adjustment reflects updated sales tax projections indicating a decline of approximately $9.0
million in FY 2026, or more than 20%, driven by potential one-time adjustments and lower
ongoing allocations to the City. Beginning in FY 2027, sales tax revenue is projected to remain
approximately $5.0 million lower annually, or over 10%, compared to prior estimates. These
changes are primarily due to revised regulations used by the California Department of Tax and
Fee Administration (CDTFA) in apportioning sales tax revenue from the leasing and new auto
sectors. Sales Tax performance continues to evolve based on consumer activity and state
allocation methodology, and staff continues to coordinate with the State and business
community to better understand these impacts.
Transient Occupancy Tax (TOT)
The FY 2026 Budget is $29.1 million in TOT revenue, consistent with FY 2025 actual receipts of
$29.0 million and above pre‐pandemic collections of $25.7 million in FY 2019. TOT performance is
primarily driven by hotel operating metrics, including average daily room rates and occupancy.
December TOT revenue is not included in the Mid-Year report due to timing of collections. From
July to November, the average occupancy rate is 85.5% (compared to 71.4% the prior fiscal year),
and the average room rate is $274 (down from $290 the prior fiscal year). Year-to-date collections
represent approximately 43% of the annual budget compared to prior year of 41%, given current
trends TOT is projected to meet or exceed current FY 2026 budget estimate. This is an
improvement from the current long-range financial forecast estimate.
Utility User Tax (UUT)
The FY 2026 Budget is $21.4 million, a $1.0 million or 5.11% increase compared to $20.4 million in
FY 2025 actual receipts. UUT is calculated as a percentage of utility charges billed to customers for
services and is primarily driven by customer usage and utility rates. As of the 2nd quarter, actual
receipts are $10.0 million, which is $0.6 million or 6.2% higher than the same period of the prior
year at $9.4 million. This increase reflects FY 2026 adopted utility rate increases, normal
fluctuation in utility consumption and billing cycles. Based on current trends, staff does not
recommend adjustments to the adopted budget and will continue to monitor collections
throughout the remainder of the fiscal year.
Documentary Transfer Tax (DTT)
1 Finance Committee, November 18, 2025, Item #2
https://recordsportal.paloalto.gov/WebLink/DocView.aspx?id=83883&dbid=0&repo=PaloAlto
Attachment B
B
Attachment B – Page 4 of 7
The FY 2026 Budget totals $8.5 million, representing a $0.1 million, or 1.8%, increase over FY 2025
actual receipts of $8.4 million. Through the second quarter, cash receipts total $5.0 million, which
is 58.8% of the FY 2026 adjusted budget and $1.0 millio n, or 24.2%, higher than receipts through
the second quarter of FY 2025. DTT revenues are highly variable, as collections depend on both the
number and value of property transactions. Staff continues to monitor these receipts closely due
to significant fluctuations that can occur from changing market conditions. Based on receipts
reported to date, staff recommends maintaining DTT revenue at the FY 2026 Adopted Budget level
and continue to monitor collections throughout the remainder of the fiscal year.
Return on Investments
The FY 2026 Budget is $3.7 million, a $0.2 million or 0.56% increase from FY 2025 actual receipts
which were also $3.7 million. As of the 2nd quarter, cash receipts total $1.98 million, or 53% of the
FY 2026 budget. Beginning in August 2025, the City transitioned from managing investments in-
house to Chandler Asset Management to provide active investment management2, cash flow
forecasting, and investment advisory services. While this transition is expected to increase the
City’s return on investments over time, the benefits will occur gradually as existing holdings
mature, and the portfolio is repositioned to the new strategy. Investment revenues in the current
year are tracking in line with the adopted budget, and no material change is expected in FY 2026.
Higher investment earnings are anticipated beginning in FY 2027 and will be incorporated into the
FY 2027 Proposed Budget. Staff will continue to monitor investment performance through
quarterly reporting.
Business Tax
The FY 2026 Adopted Budget includes $6.7 million for Business Tax revenue. As of the 2nd
quarter, collections total $1.8 million or 27.1% of the FY2026 budget. This is consistent with
historical collection patterns and reflects the timing of quarterly Business Tax payments, which
are received in arrears. Early fiscal year receipts are mostly attributable to prior-year activity, as
taxes due June 30 are payable beginning July 1 with a 30-day grace period through July 30. Based
on payments received to date and expected upcoming filings, staff anticipates revenues will align
with adopted budget levels and will continue to monitor collection trends.
Measure K (Business Tax) was approved by voters in November 2022 to provide additional funding
for critical public safety needs; transportation safety improvements and grade separations; and
affordable housing and unhoused services. The first Business Tax payment was due on January 1,
2024, for the calendar year of 2023, with quarterly payments thereafter. Measure K included a
multi-year phase-in of the tax rate, with incremental increases applied annually. FY 2026
represents the full fiscal year in which the Business Tax is fully phased in at the voter-approved
rate of $0.075 per square foot.
2 Finance Committee, October 21, 2025, Item #2:
https://cityofpaloalto.primegov.com/Portal/Meeting?meetingTemplateId=16276
Attachment B
B
Attachment B – Page 5 of 7
Charges for Services
The FY 2026 Budget assumes $44.2 million in Charges for Services, an increase of $5.0 million, or
12.8%, compared to FY 2025 actual receipts of $39.2 million. Current year-to-date receipt is 42%
compared to 39% in the prior year. The primary drivers for higher year-over-year increase include
zoning and plan check ($1.8 million), paramedic service fee ($1.4 million) reflecting new first
responder fee and increased number of transports, and recreation programming and drop-in
admissions ($0.6 million). Based on current receipt trends and due to unpredictable nature of
some revenues (i.e. permit and medical transport), revenues are projected to meet the FY 2026
budget estimate.
Permit & License
The FY 2026 Budget assumes an estimate of $11.1 million in permit and license revenue, which
aligns with the $10.6 million FY 2025 actual receipts. Permits and Licenses revenue totaled $5.65
million in Q2 FY 2026, an increase of $1.11 million (24%) compared to Q2 FY 2025. The increase is
driven almost entirely by Building New Construction Permit revenue, which rose by $1.13 million
due to the timing and scale of development activity. Several smaller permit categories declined
year over year, partially offsetting gains. Overall, growth reflects concentrated new construction
activity. Given current permits and license receipts and unpredictable nature of such revenues, it is
projected to meet current FY 2026 budget estimate.
Expenditures
Overall General Fund expenditures are currently expected to remain within the FY 2026 Adjusted
budget levels of $287.5 million (excluding transfers to infrastructure or other funds). General Fund
expenditures (excluding operating transfers) for second quarter are 2.9% higher than the prior
fiscal year and are tracking at 45.9% of the Adjusted Budget (excluding encumbrances). This trend
exceeds prior fiscal year expenditure levels which were at 44.8% at the end of the 2nd quarter in FY
2025. This is still below the 50% par level that is expected halfway through the fiscal year, and staff
will continue to monitor expense trends and inform Council regarding anticipated savings or
overages compared to budgeted levels.
Table 2
Salaries and Benefits
Expenditures FY 2026 FY 2025 Inc/(Dec)% change FY 2026 %FY 2025 %
Police 30,155$ 30,414$ (259)$ -0.9%59,899$ 50.3%56,388$ 53.9%
Fire 30,000 28,688 1,312 4.6%59,504 50.4%55,441 51.7%
Community Services 21,491 20,325 1,166 5.7%44,815 48.0%42,553 47.8%
Public Works 12,818 11,541 1,277 11.1%28,813 44.5%27,805 41.5%
Planning and Development Services 11,582 11,081 501 4.5%29,782 38.9%29,336 37.8%
Library 6,613 6,496 117 1.8%13,085 50.5%12,840 50.6%
Administrative Services 5,756 5,650 106 1.9%12,039 47.8%12,154 46.5%
All Other Departments 13,462 13,973 (511)-3.7%39,541 34.0%49,605 28.2%
Total Expenditures 131,877$ 128,168$ 3,709$ 2.9%287,478$ 45.9%286,122$ 44.8%
General Fund Expenditures
FY 2026 2nd Quarter YTD
(000's)
2nd Quarter Actuals Adjusted Budget
Attachment B
B
Attachment B – Page 6 of 7
As a service driven organization, the largest expenditure is salaries and benefits. Preliminary
salaries and benefits expenditures through December 2025 are approximately $95.8 million, or
50.7% of the $189.0 million FY 2026 Budget, compared to $99.0 million or 54.4% in the same
period in the prior fiscal year. As of February 2026, the citywide vacancy was 126 positions or
11.5% vacancy rate. See Table 3 below for more detailed information regarding citywide vacancies
by department and bargaining unit as of the beginning of February. Given the fiscal condition of
the City, all recruitments are subject to review and approval by the Hiring Review Committee and
further consideration of governmental efficiencies.
Table 3
Citywide Vacancies by Department
Public Safety Overtime
Table 4
Department General Fund Other Funds Grand Total
Administrative Services Department 6.00 1.50 7.50
City Attorney's Office 1.00 1.00
City Clerk's Office 1.00 1.00
Community Services Department 5.75 5.75
Fire Department 9.00 9.00
Human Resources Department 0.00 1.00 1.00
Information Technology Department 2.00 2.00
Library Services Department 5.00 5.00
Office of Transportation 3.00 3.00
Planning and Development Services 6.00 1.00 7.00
Police Department 15.00 15.00
Public Works Department 5.00 18.50 23.50
Utilities Department 46.00 46.00
Grand Total 56.75 70.00 126.75
Vacancy %9.4%14.2%11.5%
Vacancy % (w/o Public Safety)6.9%
Police and Fire
Salaries and Overtime Expense
FY 2026 2nd Quarter YTD
(000's)
FY 2026 FY 2025 % change FY 2026 %FY 2025 %
Inc (Dec)
Police - Salaries 10,536$ 10,562$ -0.2%23,037$ 46%22,548$ 46.8%
Police - Overtime 2,225 2,162 2.9%4,574 49%5,903 36.6%
Total Police 12,761 12,724 0.3%27,611 46%28,451 44.7%
Fire - Salaries 10,947 9,808 11.6%22,924 48%21,628 45.3%
Fire - Overtime 2,310 3,010 -23.3%3,080 75%2,721 110.6%
Total Fire 13,257 12,818 3.4%26,004 51%24,349 52.6%
Total Public Safety
Salaries & Overtime 26,018$ 25,542$ 1.9%53,615$ 48.5%52,800$ 48.4%
2nd Quarter YTD Actuals Adjusted Budget
Attachment B
B
Attachment B – Page 7 of 7
Police Department overtime is 3% higher than prior fiscal year and represents 49% of the adjusted
budget. As of first quarter of FY 2026, the Department had 15 vacancies, or 11% of 139 FTE positions
(12 officers and 3 dispatchers). Overtime is used to cover vacancies, training, leave and major
incidents, with most costs driven by police officer staffing. For example, in January 2026 only 57
of 84 authorized non-management officers (68%) were available for duty; the remainder were
vacant, on long-term leave, in training, or at the academy. Additional information regarding
public safety overtime tracking is included in Attachment C.
Fire Department overtime is generated to backfill vacancies on shift. Each day, 25 positions are
required to keep Fire Engines and Ambulances operational. Any vacancy must be filled to keep
the unit in service. Vacancies result from open positions, injuries, employees in training, and
approved leave. In the second quarter of FY 2026, 10 new firefighters entered the Fire Academy;
overtime is required to cover their shifts until they graduate in February 2026. All Strike Team
deployments are paid at overtime and reimbursed by the State. There have been six
deployments in FY 2026 that are pending reimbursement. Additional information regarding
public safety overtime tracking is included in Attachment C.
Attachment C
2024 2025 2026 Q2
POLICE DEPARTMEN
Overtime Expense
Adopted Budget (A)$1,028,988 $1,098,939 $1,173,110
Modified Budget (B)1,028,988 1,098,939 1,173,110
Net Overtime Cost - see below 1,160,290 1,868,684 364,829
Variance to Budget (131,303) (769,745) 808,281
Overtime Net Cost
Actual Expense $3,467,691 $3,181,061 $2,186,643
Less Reimbursements
Other Program Reimbursements 259,747 - 671,270
California OES/FEMA (Strike Teams) - - -
Stanford Communications 99,161 109,651 50,746
Utilities Communications Reimbursement 56,429 67,170 30,142
Local Agencies (C)6,574 6,813 5,291
Police Service Fees 117,433 138,141 48,080
Total Reimbursements 539,345 321,775 805,530
Less Department Vacancies (A)1,768,057 990,602 1,016,284
Net Overtime Cost $1,160,290 $1,868,684 $364,829
Department Vacancies (number of days)5,419 2,733 2,454
Workers' Compensation Cases 21 13 6
Department Disabilities (number of days)381 664 216
FIRE DEPARTMEN
Overtime Expense
Adopted Budget (D)$2,146,234 $2,721,066 $3,079,691
Modified Budget (E)2,146,234 5,216,682 4,939,387
Net Overtime Cost - see below 1,734,841 3,474,470 1,842,167
Variance to Budget 411,393 1,742,212 3,097,220
Overtime Net Cost
Actual Expense $4,099,233 $5,288,738 $2,278,922
Less Reimbursements
California OES/FEMA (Strike Teams) - 957,482 109,064
Fire Station 8 Fire Services 272,267 229,660
Total Reimbursements - 1,229,749 338,724
Less Department Vacancies (D)2,364,392 584,519 98,031
Net Overtime Cost $1,734,841 $3,474,470 $1,842,167
Department Vacancies (number of days)5,297 3,401 788
Workers' Compensation Cases 8 16 5
Department Disabilities (number of days)274 395 121
NOTES:
(A)The FY 2026 Police Department budget did not include any new positions.
(B)Police Department adopted budget has not been adjusted in FY 2026.
(C)Includes Animal Control Services contract with Los Altos and Los Altos Hills.
(D)The FY 2026 Fire Department budget was increased by 3.0 Fire Captains and 7.0 Single Role EMS Division positions.
(E)As part of the FY 2026 Mid-Year Review, staff is recommending actions that will result in a Fire Department overtime budget of $4.9 million.
Public Safety Department
Overtime Analysis for Fiscal Years 2024 through 2026
FEBRUARY 23, 2026 www. paloalto.gov
FY 2026
Mid-Year Budget
Update
City Council Item #8
FINANCIAL PLANNING CYCLES & CONVERSATIONS
2025 Sept
•CalPERS Actuarial
Valuation Update
2025 Nov
•Major Tax Revenue Update
•Retiree Benefit Funding Update
2025 Dec/Jan (CC)
•Long-Range Financial Forecast
•Q1 FY2026 Fiscal Status
•FY2025 Audited Financials
•Council Priorities/Objectives
2026 Feb (CC)
•FY2026 Mid-Year Budget
(Q2 FY2026 Fiscal Status)
2026 Feb - Apr
•Staff Budget Development
•Utility Financial Forecast &
Rates
•Fee Updates
2026 May
•Proposed Budget
•Q3 FY2026 Fiscal Status
2026 June
•Budget
Adoption
2025 June
•FY2026 Budget Adoption
2026 Oct
•ALM
Update
In January, staff provided updates to the City Council on the FY 2027 Long Range
Financial Forecast. Today’s presentation continues the discussion with the Mid-Year
Budget Update.
2
3
SUMMARY OVERVIEW
1.Fiscal Overview & Technical Adjustments
➢General Fund Revenue Realignment, Reserve Management
& Expenditure Status
➢Enterprise and Other Fund Adjustments
2.Pension Liability Management (Section 115 Trust)
3.FY 2027 Efficiency & Multi-Year Outlook
Staff recommends the City Council receive the FY 2026 Mid-Year
Review and various budget amendments.
4
1.FISCAL OVERVIEW & TECHNICAL ADJUSTMENTS
Overall, the General Fund is tracking
below adopted revenues and within
expenditure levels, consistent with
prior updates to Finance Committee
and City Council.
Both use of reserves and technical
realignments effectively closes the
mid-year revenue gap.
The $0 net impact to the General
Fund, after use of the Budget
Stabilization Reserve (BSR).
5
1. GENERAL FUND: REVENUES, RESERVES & EXPENDITURES
Navigating a $9.0 million sales tax decline through disciplined reserve
management to preserve fiscal stability.
6
1. GENERAL FUND EXPENDITURE STATUS
Cost-containment
across departments
is resulting in total
citywide
expenditures
remaining below
the 50% par level at
mid-year.
7
1. ENTERPRISE AND OTHER FUND ADJUSTMENTS
Technical adjustments to other funds:
Finance Committee – (Nov 18, 2025) Review and Recommendation:
•Continue to implement Retiree Benefit Policy
•Attain 90% funded status (all funds) before 15-year Policy goal;
•Reduces pension liability and employer costs
•Data-driven modeling and actuarial reports
•Section 115 Trust Disbursements:
•FY26 Mid-Year – disburse $10M of the estimated $130M balance
•ADC for FY27 – FY 31 ($6M to $10/year)
•ADP Annually (Incorporated in budget development)
2. PENSION LIABILITY MANGEMENT (115 TRUST)
8
9
Reporting
Every 4 years, progress update
Annual report during budget
development – balance,
contribution & transmission
Service Delivery Outcome
If contributions impacts service
delivery, Staff to identify
impacts & mitigations through
budget process.
Fiscal Impacts
If General Fund’s revenues are
projected to decline more than
7.5% year-over-year, Staff to
return to Council on
recommendation.
Funding Goals &
Timeline
Reach 90% within 15
years (2036)
Funding Components
City Normal Cost at 5.3% vs
CalPERS Discount Rate 6.8%
Excess BSR contribution
Use of Funds
Transmit excess of 1 year REC
Requires Council Authority
CMO to identify impacts on funding goals &
timeframe to modify transmission to PARS
2. RETIREE BENEFIT FUNDING POLICY – GOALS & PRINCIPLES
2. PARS PENSION TRUST – CONTRIBUTIONS & ACCRUED SAVINGS
•FY25-26 One-Year Required Employer Cost (REC) is $70M. PARS
balance $109.9M (6/30/25) exceeds REC by $40M.
•Performance: 1/1/26 Balance $127M ($95M contributions, $33M
earnings)
•Performance %: 1yr: 14.2%, 3yrs: 12.9%, 5yrs: 5.67%
•Per policy, Section 115 disbursement would have occurred back in
FY24
10
11
3. FUTURE OUTLOOK & GOVERNMENT EFFICIENCY
Increased government efficiency to solve projected multi-year structural gap.
FISCAL OUTLOOK
•FY26 deficit partially solved with further budget cuts ($6M cut Sept 2025, $3.4M
on-going ($2.4M GF, $1M CIP)
•FY27 outlook $14.9M structural deficit and continues through FY32
•Requires continued fiscal discipline and more solutions previewed in LRFF.
GOVERNMENT EFFICIENCY
•Alignment with Council Priority & Objectives; CMO Budget Transmittal and Budget
Deliberation & Approvals
•Streamline operations
•Reduce professional service costs & improve contract management
•Increase revenues
•Improve facility utilization
12
RECOMMENDATION
Staff recommends that the City Council receive the FY 2026 mid-year budget
review and:
•Approve amendments to the Fiscal Year 2026 Budget Appropriation for
the funds and capital projects identified in Attachment A, Exhibits 1 and 2
(requires 2/3 approval);
•Consolidate the remaining $6.0 million in the Uncertainty Reserve with the
Budget Stabilization Reserve (BSR) to streamline reserve administration,
closing the Uncertainty Reserve; and
•Authorize the City Manager or their designee to transmit $10.0 million
from the City's PARS Pension Trust to CalPERS as an Additional
Discretionary Payment (ADP)
Next Steps
Annual Budget
Process
Feb-April 2026:
Budget
development, Rate
& Fee Updates
May 2026:
FY 2027 Proposed
Budget
Jonathan Rewers
Budget Manager
Jonathan.Rewers@paloalto.gov
Robert Valentukonis
Budget Manager
Robert.Valentukonis@paloalto.gov