The city budget shall be preceded by a budget message which shall explain the budget both in fiscal terms and in work programs. It shall outline the proposed financial policies of the city for the ensuing fiscal year; describe the important features of the budget; indicate any major changes from the current year in financial policies, expenditures and revenues together with the reasons for such changes; and include such other material deemed relevant to council for consideration of the document. The budget shall provide a complete financial plan for all city funds and activities of the ensuing fiscal year and, except as required by law or this charter, shall be such form as the mayor deems desirable. In organizing the budget, the most feasible combination of expenditure classifications by fund, organization unit, program, purpose, activity or object shall be used. It shall begin with a clear general summary of its contents. It shall show in detail all estimated income, indicating the proposed property tax levy, and all proposed expenditures, including debt service for the ensuing fiscal year. It shall be so arranged as to show comparative figures for actual and estimated income and expenditures for three fiscal years: the last completed fiscal year, the year of preparation of the budget and the, projections for the ensuing fiscal year. It shall indicate in separate sections:
   (1)   Proposed expenditures for operations during the ensuing fiscal year detailed by departments in terms of their respective work programs and the method of financing such expenditures.
   (2)   Proposed capital improvement expenditures during the ensuing fiscal year detailed by purpose and the proposed method of financing each capital expenditure.
   (3)   Anticipated net surplus or deficit for the ensuing fiscal year of each utility owned or enterprise fund operated by the city and the proposed method of its disposition.
   Budgets for each utility or enterprise fund giving detailed income and expenditure information shall be included, as well as detailed schedules indicating the city's debt position and debt service requirements. The total of proposed expenditures shall not exceed the total of estimated income.