CITY COUNCIL AGENDA ITEM
ACTION REQUESTED:
title
Conduct a truth-in-taxation hearing for the 2025 property tax levy (Item 1 of 3)
body
DEPARTMENT: Finance Department
SUBMITTED BY: Raymond Munch, Director of Finance
BOARD/COMMISSION REVIEW:
N/A
BACKGROUND:
If the City of Naperville chooses to raise revenue through property taxes, it is required to approve and file a property tax levy ordinance by the last Tuesday in December with DuPage County and Will County. Several statutorily required steps must occur prior to filing the levy. The completed steps to date include:
ü Make the tentative annual budget available for public inspection. (October 10)
ü Estimate the amount of taxes to be levied at least 20 days prior to approval. (November 18)
ü Determine whether a Truth-in-Taxation hearing is required. (November 18)
ü Publish notice for a public hearing on the tentative annual budget. (November 19)
ü Hold a public hearing on the tentative annual budget and pass an ordinance approving the annual budget. (December 2)
ü Publish notification in the newspaper of the truth-in-taxation hearing not less than seven days and no more than 14 days prior to the date of the truth-in-taxation hearing. (December 5)
The remaining step this year in the property tax levy process is:
§ Hold truth-in-taxation hearing and adopt levy. (December 16)
Per Illinois state statute, municipalities are required to publish and hold a truth-in-taxation hearing if the amount of the requested aggregate levy is more than 105% of the prior year’s general corporate and special purpose tax extensions, plus any amount abated prior to the extension. When comparing Naperville’s tax year 2024 extension to the aggregate 2025 levy, the proposed 2025 levy is 105.7% of the previous year’s levy, therefore requiring the City to hold a truth-in-taxation hearing.
The City Council received the estimated tax levy and set a truth-in-taxation hearing at its November 18, 2025 meeting. The truth-in-taxation hearing notice was published on December 5, 2025, in the Naperville Sun newspaper.
DISCUSSION:
The 2025 property tax levy recommendation supports the City of Naperville's 2026 annual operating budget, which was approved by the City Council on December 2, 2025. A key policy decision throughout the budget development process is the establishment of the annual property tax levy amount. Property taxes are the primary funding source for long-term obligations of the City, such as public safety pensions, IMRF pensions and debt service payments. Property taxes are also the predominant funding source for the Naperville Public Library and Naper Settlement.
Like prior years, this year’s recommended property tax levy takes advantage of growth in the equalized assessed valuation (EAV) of the community. Assuming 10% growth in EAV, the proposed tax levy is estimated to produce a property tax rate of 0.5583. That estimated rate represents a 6.8% reduction from the 2024 extended rate. Actual tax extension rates are dependent on final EAV, so the 2025 extended rate may be slightly higher or lower depending on final EAV, which is not determined until after the tax levy filing deadline.
The estimated tax rate assumes that after approval of the 2025 property tax levy ordinance, the City will abate $8.50 million in debt service levies for which the City will fund through other sources.
Property Tax Levy Ordinance
The first ordinance attached to this agenda item is for approval of the 2025 property tax levy, which will be used to fund the 2026 operating budget approved at the December 2, 2025, City Council meeting.
The initial total 2025 property tax levy for the City of Naperville is requested at $69,064,110. This amount includes all corporate and special purpose levies but does not include any abatements related to the utility or special fund debt service.
The total property tax levy is derived from a variety of sources, as detailed below:
General Corporate
The general corporate portion of the levy request supports the General Fund, which provides fire, police, and public works services to the community. The $10.08 million levy request supports just 5.8% of the City’s total General Fund operating expenses; however, this amount represents a key component of the City’s revenue diversification model as property taxes are historically the City’s most stable revenue source.
Debt Service Levy
The debt service levy is based on the City’s annual debt service requirements. As required by statute, the City Council approves a levy for the entire value of the general obligation (GO) bond debt service, including those for general corporate borrowing, water/wastewater and electric utility borrowing and borrowing related to special purposes, at the time the bonds are issued. The City is required to levy for all GO debt as part of the initial levy. The amount for all GO debt service is $14.56 million. Following approval of the 2025 property tax levy ordinance, City Council will be asked to approve an ordinance to abate $8.50 million from the debt service levies. This represents the portion of debt service paid for through other sources, such as the Water Utilities Fund and the Electric Utility Fund.
Illinois Municipal Retirement Fund (IMRF) Pension Levy
The portion of the tax levy allocated to IMRF is based on the actuarially calculated percentage provided to the City by IMRF. The 2026 rate is 7.80%, a 10.5% increase from the 2024 rate of 7.06%. The 2025 levy amount totals $2.55 million and represents the General Fund portion of the total estimated IMRF obligation.
Public Safety Pension Levies
Per the 2025 actuarial valuation report, the required contributions to the Fire pension decrease by $92,125 or 0.8%, and the Police pension increases by $181,251, or 2.0%. The total required public safety pension contributions amount is $20,051,179. The property tax will fully fund public safety pensions in 2026, with the Food and Beverage Tax funding an additional $1,748,076.
Naper Settlement Levy Request
The Naper Settlement portion is based on the request made by the Naperville Heritage Society. The Settlement receives more than 70% of its annual funding through property taxes. The final levy is recommended at $3,994,682, an increase of 2.3% from the prior year’s extension.
Naperville Public Library Levy Request
The Library portion is based on the request made by the Naperville Public Library Board. The Naperville Public Library is more than 95% funded by property taxes. The Library Board requested City Council approve a levy of $17,818,697, an increase of 3.6% from the prior year’s extension. The levy request supports the increasing cost of operations, including personnel costs, materials, and programs.
The aggregate total tax levy, which excludes debt service, is utilized to calculate the truth-in-taxation requirements. As shown in the chart below, the 2025 aggregate levy amount is $54,498,003; an increase of 5.7%. Including the debt service levy of $14,566,107, the initial total 2025 property tax levy before abatements is $69,064,110.
|
Purpose |
2024 Final Extension |
2025 Estimated Levy |
% Change |
|
General Corporate |
8,176,157 |
10,079,751 |
23.3% |
|
IMRF |
2,258,553 |
2,553,694 |
13.1% |
|
Naperville Fire Pension |
11,006,745 |
10,914,619 |
-0.8% |
|
Naperville Police Pension |
8,955,309 |
9,136,560 |
2.0% |
|
Naper Settlement |
3,905,619 |
3,994,682 |
2.3% |
|
County Levy Adjustment |
38,961 |
- |
-100% |
|
Naperville Public Library |
17,200,260 |
17,818,697 |
3.6% |
|
Aggregate Levy |
51,541,604 |
54,498,003 |
5.7% |
Property Tax Abatement Ordinance
Following the 2025 property tax levy ordinance, a second ordinance is presented for consideration by the City Council. This ordinance is for the abatement of a portion of debt service owed by other funds on outstanding GO bonds. Taxes abated will be offset by funds available from other sources, including user fees in the Electric Utility and Water Utilities funds; separate property taxes received through Special Service Area (SSA) #23 and the Water Street TIF; and revenues dedicated to debt service from Food and Beverage taxes. The breakdown of the abatement is as follows:
|
Funding Source |
Bond Series |
Amount |
|
Electric Fund |
2016 (refunding) |
$266,450 |
|
|
2020 |
$593,150 |
|
|
2025 |
$465,788 |
|
Subtotal |
$1,325,388 |
|
Water/Wastewater Fund |
2016 (refunding) |
$562,100 |
|
|
2020 |
$1,059,750 |
|
|
2022A |
$416,000 |
|
|
2024 |
$2,209,550 |
|
|
2025 |
$934,800 |
|
Subtotal |
$5,182,200 |
|
Downtown Parking Fund |
2016 (refunding) |
$5,150 |
|
|
2020 |
$42,000 |
|
Subtotal |
$47,150 |
|
SSA #23 Fund |
2016 (refunding) |
$98,939 |
|
Subtotal |
$98,939 |
|
Water Street TIF Fund |
2014 |
$403,000 |
|
|
2016 |
$277,950 |
|
Subtotal |
$680,950 |
|
Food and Beverage Fund |
2020 |
$1,018,179 |
|
Subtotal |
$1,018,179 |
|
Debt Service Fund |
2025 |
$147,375 |
|
Subtotal |
$147,375 |
|
GRAND TOTAL $8,500,181 |
Final Property Tax Levy Amount
Taking the initial total tax levy of $69,064,110 and combining it with the $8,500,181 in abatements from utility and special funds results in a total property tax levy of $60,694,537. This total represents the full amount to be levied, after debt service abatements, and represents a 2.6% increase from the 2024 extension and is projected to result in an extended rate of 0.5583 (assuming EAV growth of 10%).
|
|
2024 Final Extension |
2025 Levy w/Abatements |
Change (%) |
|
General Corporate |
8,176,157 |
10,079,751 |
23.3% |
|
Debt Service |
7,515,358 |
14,566,107 |
-18.7% |
|
Debt Service Abatements |
- |
(8,500,181) |
|
|
IMRF Pension |
2,258,553 |
2,553,694 |
13.1% |
|
Fire Pension |
11,006,745 |
10,914,619 |
-0.8% |
|
Police Pension |
8,955,309 |
9,136,560 |
2.0% |
|
Naper Settlement |
3,905,619 |
3,994,682 |
2.3% |
|
County Levy Adjustment |
38,961 |
- |
-100.0% |
|
Naperville Public Library |
17,200,260 |
17,818,697 |
3.6% |
|
Total Levy |
59,056,962 |
60,563,929 |
2.6% |
The City strives each year to maintain an appropriate property tax rate and continues to have one of the lowest property tax rates among our comparable communities. While the City components make up only about 9.5% of a property owner’s total tax bill, the City attempts each year to minimize the impact it has on the overall property tax bill.
FISCAL IMPACT:
The final property tax levy after abatements will be $60,563,929, which will support the 2026 Annual Budget.