Learn About Berkeley

Berkeley Budget Basics

A plain-language look at where the City of Berkeley gets its money, where it goes, and the choices ahead.

NEWWhat’s on the next council agenda? — live budget scans
Snapshot Where the money goes The deficit What we own vs. need Why true cost is hard to see How it connects Start here: the simple version Tax measures City plans Plans × Audits × Budget Glossary Outside views About & sources
Last updated June 18, 2026 · Figures from the FY2024 audited financial report and the FY2027–28 Proposed Budget.

The snapshot

The numbers a resident needs to start with.

$905M
Total budget, FY2027 (all funds)
Adopted June 23, 2026
~$315M
General Fund, FY2027
The discretionary third — where the deficit is
~$32M
Recurring General Fund gap
FY2027 baseline, before the balancing plan
~122,000
Residents
1,605
City staff (full-time equivalent)
41% paid from the General Fund
~$2.1B
Unfunded infrastructure needs
FY27–31 CIP; the Auditor counted $1.8B in FY2024

The General Fund: the third of the budget where the deficit lives

Berkeley's FY2027 budget is $905 million across all funds. About $315 million of that is the General Fund — the only large fund the Council may spend at its discretion.

The other $590 million is already committed: voter-approved parcel taxes that can only go to parks, libraries, fire, or streets; water, sewer, marina and parking fees that must stay in the operation that collected them; state and federal grants with strings attached; bond money tied to specific projects. So when you read that Berkeley has a $32 million structural deficit, that is a General Fund number. When the Council cuts positions, moves programs to other funds, or asks for a half-cent sales tax, it is the General Fund it is balancing. The other two thirds of the budget can be large, growing, and irrelevant to the deficit at the same time.

Where the $315 million comes from. Property tax is the base: about $99 million from the general levy, plus $21 million in property-transfer tax and another $12 million from Measure P's higher transfer-tax rate on expensive sales. Business-license tax brings $25 million, sales tax $19 million, utility-users tax $19 million, the state's vehicle-license backfill $21 million, interest on the City's cash $14 million. Roughly five dollars in six are taxes; the rest is fees, fines, and reimbursements from other funds.

Where it goes. Two thirds of General Fund spending is salaries and benefits. Public safety — police, fire, 911 — is a little over half of the total (FY2025 audited: $147 million of $261 million). Only about four in ten City employees are paid from the General Fund, and most of those are police and fire. That is why every General Fund balancing plan ends up at the same three doors: public-safety staffing, pension and health-benefit costs, and the small set of programs the General Fund pays for directly.

How FY2027 was balanced. The City projected $297 million in revenue against $329 million in spending — a $32 million gap. It closed the gap by re-basing the personnel budget to what departments actually spend ($16.5 million), a position-reduction list of 138 positions (100 of them vacant), and revised revenue forecasts. The adopted budget shows a $1 million surplus. Thirty-three of the preserved positions are funded only if the November sales-tax measure passes; if it fails, they are cut in FY2028.

Sources: FY2027 & FY2028 Adopted Biennial Budget (Item 21, June 23 2026 packet); FY2025 ACFR; City Auditor, Berkeley's Financial Condition FY2016–FY2025 (April 2026).

Where each tax dollar goes

The audited net cost of each service — what general taxes pay after fees and grants. Total: $334 million (FY2024).

Public safety
51.5%
Parks, libraries & recreation
17.9%
General government
12.9%
Health & welfare
5.5%
Streets & highways
4.1%
Housing & community dev.
3.7%
Interest on debt
2.4%
Economic development
1.9%
Public safety (police, fire, 911) is just over half of every general-tax dollar. Bars scaled to the largest category. Source: FY2024 Statement of Activities.

Where it comes from: about $324M in taxes. Property taxes are roughly two-thirds of that; the rest is business-license tax (~$31M), sales tax (~$20M), utility-users tax (~$17M), and hotel and other taxes.

The “deficit” — and where the money actually went

Here is the part that confuses almost everyone: the City projects a ~$29M/year deficit and spent less than it budgeted every year. Both are true. Here's how.

What the “deficit” is

It's a forecast, not a record that the City ran out of cash — and it's the gap between two sets of choices: how much the City decides to spend, and how much it decides (and voters allow) it to raise. It's measured against a baseline that assumes full staffing — positions the City chronically leaves unfilled. It recurs because those choices recur, not because it's required.

What actually happened

The City under-spent its budget every year, 2020–2024 — mostly because it couldn't fill open jobs — while revenue often beat forecast. So it ran surpluses and built up savings.

Its General Fund fund balance grew from ~$84M (2018) to ~$158M (2023). The formal reserves inside that balance (Stability + Catastrophic) stood at $58.3M in June 2025 — 21.3% of General Fund revenue, inside the new 20–30% goal.

The clearest proof it's a choice: when the City re-based this budget to what it actually spends, $16.5M in personnel budget simply disappeared — with no service cut (salaries −$9.5M, pensions −$3.7M, health −$1.6M, overtime −$0.7M). A budget you can shrink by $16.5M just by being honest about it was carrying $16.5M of padding. The gap is partly an artifact of how the baseline is drawn.
So where did the money go?

The surplus didn't vanish — by deliberate policy, the City swept roughly $30–42M a year out of the operating budget into walled-off savings:

~$18M/yr
To the capital fund (roads, buildings)
~$27M
Banked in a pension pre-funding trust
~$54M
Held in rainy-day & catastrophic reserves
So the money went into reserves, pension pre-funding, and capital — not into thin air. The catch: most of it is now legally committed or restricted. The truly free reserve is only about $29.6M — roughly one year of the projected deficit. And 2024 was the first year spending actually outran revenue, which is what turned the projection serious.
Want the year-by-year mechanics of how unspent money carries forward (the November “AAO” process)? An independent advocacy site, Berkeley Fiscal Reality, tracks it in detail — see Outside perspectives below.
What's locked vs. what's a choice

Calling the gap “built-in” hides that nearly every piece of it is a decision — just on different time horizons, and by different deciders.

Hard to change fast
Pension bills (set by CalPERS, legally owed), union contracts, debt payments, and mandates like the federal sewer order.
Within the City's control
Service levels, staffing targets, and the choice to budget at full staffing it never fills — budget to actual staffing and part of the gap disappears on paper.
Needs the voters
Raising revenue. State limits (Prop 13 & Prop 218) cap what the City can raise without a public vote — the revenue side isn't the Council's alone.
How the gap is being closed

Mainly by reducing staff. The plan eliminates 138 positions — about 100 already vacant and 38 filled. 33 of them would be restored if voters pass a proposed 0.5% sales tax in November 2026 (raising the rate to 10.75%, ~$9–10M/yr).

The honest read: this isn't hidden money (reserve-building is prudent, and most of it is committed), and it isn't “no problem” (pension costs really do jump after 2025, and 2024 was the first year spending outran revenue). But it also isn't a requirement. It's a recurring decision — made under real constraints — about what to spend, how to staff, and whether to ask voters for more — decisions the Council makes (the City Manager drafts the budget; the Mayor holds one vote and no veto). One-time fixes never end it because the choices repeat, not because the gap is a law of nature.
The deficit also has a fourth dimension — time. Today's gap is the visible tip; underneath sit decades of deferred deficits (unfunded pensions and a growing capital backlog) pushed down the road. See The Deficit Through Time for a sourced, mayor-by-mayor ledger of when those grew, and the public-comment talking points for making the case in two minutes.

What the City owns vs. what it needs

The longer-term challenge sits largely off the annual budget.

~$609M
Value of City infrastructure today (after wear)
~$2.1B
Cost to bring it up to standard
Streets, sewers, storm drains, marina, buildings
~$730M
Pension & retiree-health debt owed
$686M pension + $43M retiree health, June 2025

Worth knowing: the City has no single public list of what it owns. Asset data is split across an internal maintenance system, separate open-data map layers, and the annual audit — so even “what we own” has to be assembled piece by piece.

The cost of waiting

Repairs get more expensive the longer they wait. The City's own figures show the street-repair backlog growing from ~$250M today to ~$545M by 2035 if left unfunded — compounding faster than the City's cost of borrowing. Meanwhile street condition has held flat at a "poor/at-risk" rating for three straight years despite ongoing paving.

  • Sewers are the one area legally required to keep pace (a federal consent decree) — and the best-funded.
  • The Marina faces ~$131M in failing docks and pilings and a long-running deficit.
  • Storm drains carry a ~$208M need against a fee that hasn't risen since the 1990s.

Which needs should come first? This site proposes ranking them by risk rather than by department — and counting each project's full lifetime cost, not just its sticker price.

Why the true cost is hard to see

Two honest limits every resident should understand before drawing conclusions.

Budget vs. audit

The budget is an estimate, set before the year, organized by department. The audited financial report (ACFR, formerly CAFR) is the verified record afterward, and it's the only place that shows the full picture — including the value of aging assets and the pension debt the budget leaves out.

Costs cross departments

Money is tracked by which department the worker sits in, not by the problem being solved. A parks crew clearing an encampment is counted as "parks," not "homelessness." So no single number captures what a cross-cutting service truly costs.

The City's own Auditor notes that Berkeley's reported ~$35M homelessness figure excludes most staff time spent across Public Works, Parks, Police, Fire, and the City Attorney — and that the City "did not assess" those additional costs. The real total is higher and, today, not fully knowable from City records. This is a measurement gap, not evidence of wrongdoing — and it's the same gap that makes it hard to tell whether spending produces results.

How the pieces fit together

The basics above open onto one connected argument. This is the throughline of the Learn About Berkeley project — each question leads to the next.

The deficit recurs by choice, so cuts alone won't end it → that puts a premium on spending well, which means asking are we getting results? → today we often can't tell, because the true cost is scattered across departments → and capital is chosen by silo, not by risk, which lets the cost of waiting compound. Fixing how the City measures is what makes everything else possible.
Why the deficit recurs (it's a choice)
A gap between chosen spending and chosen revenue — not missing money. The surplus went to reserves and pensions.
On this page ↑
On whose watch did it grow?
A sourced tenure ledger — pension, retiree-health, and the capital backlog mapped to each mayor's term. The backlog more than doubled FY2017–FY2021.
The Deficit Through Time · web page
How to talk about the deficit
Public-comment talking points: a deficit is the arithmetic of choices — including the ones deferred through time.
“Deficit” Is a Choice Word · web page
Are we getting results?
Spending vs. outcomes. Streets sit at PCI 56 — flat for three years despite ~$18M/yr of paving.
Outcomes & Performance · spreadsheet
Why true cost is hidden
Money is tracked by department, not by problem — so homelessness costs leak across six departments.
On this page ↑
Fund by risk, not by silo
A transparent rubric to rank the ~$2.1B in unfunded needs — the ranking the City hasn't published.
Prioritization Brief · document
The cost of waiting
Deferring repairs is the City's most expensive borrowing. Sticker price is only part of true cost.
Total Cost of Ownership · document
What the City owns
Every asset class — its condition, funding, and unfunded need. The infrastructure inventory.
Asset & Service Knowledge Base · spreadsheet
How Berkeley compares
Staffing and spending per resident vs. 15 peer cities — with the caveats that make it a fair comparison.
Benchmarking · spreadsheet
Who actually writes the budget?
The Charter assigns it to the City Manager; the Council adopts it via the Annual Appropriations Ordinance; the “Mayor's budget” is a custom, not a power.
Explainer · web page
The underlying data
The full, sourced, confidence-tagged database behind every figure on this page.
berkeley-budget-database.json
Confused by a term?
AAO, ACFR, structural deficit, fund balance, FTE — a plain-English glossary of every budget word here.
Budget Terms · web page
Which taxes did voters approve?
Every operative parcel tax, bond, and general tax — with a link to the actual election item that passed.
Tax Measures · web page
What’s on the next agenda?
Automated budget scans of each City Council agenda — every spending, revenue, and fiscal item, grouped with confidence levels and source links.
Budget Agenda Scans · web page
Do the city’s plans match its priorities?
All 27 adopted plans mapped to the 2018 Strategic Plan’s nine goals — which are current, which are decades stale, and which goals have no plan at all.
Adopted Plans vs. Strategic Priorities · web page
Why is the city’s biggest problem its least-governed one?
Goal 4 — a financially healthy city government — has no plan, a structural-deficit audit with 4 of 5 fixes dropped, and an untracked 2026 follow-up. One scoreboard joins all nine goals to the Auditor’s backlog and the FY2027–28 budget as the supporting evidence.
Plans × Audits × Budget · web page
Where does grant money actually go?
$60.2M in state and federal grants flowed through Berkeley in FY2025 — but only $0.6M touched the General Fund. The flow, the shrinkage, and the $27.6M left unspent.
How Grant Money Flows · infographic
Why can’t the City just move the money?
Berkeley keeps ~110 separate legal funds. $621.9M sits in them — 65% restricted, only $22.2M truly free. The map from your tax dollar to the fund to the service.
The Fund Map · web page
Can savings elsewhere help the General Fund?
Only 41% of city staff are paid by the General Fund — and most of those are police and fire. The six legal channels through which other-fund savings actually relieve the deficit.
Cross-Fund Opportunities · web page
Does a civic event pay for itself?
The Kite Festival as a worked case: an interactive model that keeps economic impact, City fiscal cost, and public value separate. Move the assumptions and watch a festival produce ~$1M in activity while still running a Marina Fund deficit.
Event Value Twin · interactive model

Outside perspectives

This site aims to present the facts plainly and leave the conclusions to residents. The link below is an independent advocacy site — included so you can weigh the argument yourself, not because this site endorses it.

Berkeley Fiscal Reality — “The Case for Tax Relief” Advocacy
An independent site that walks through the City's annual budget cycle — unspent carryovers (the November AAO process), ~$20M in one-time FY26 fund transfers, and draws on the pension pre-funding trust and reserves — and argues those internal options should be fully explored before voters are asked for the proposed 0.5% sales tax. It cites a $33M structural deficit, in the same range as this site's ~$29M. A skeptical, questions-raising perspective — weigh it yourself.
External site · advocacy · not affiliated with this site ↗

About this page

Learn About Berkeley is an independent effort to make the City's finances easier to understand. It presents the facts and leaves the choices to residents and their elected representatives.

Primary sources:

This is an independent, unofficial summary for public understanding. Figures are rounded and carry the City's own published confidence limits. It is not financial advice and is not affiliated with or endorsed by the City of Berkeley. For official figures, consult the City's budget and financial reports at berkeleyca.gov.