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Analysis of the Mayor's Executive Budget

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Analysis of the Mayor's Executive Budget New York City Independent Budget Office ANALYSIS OF THE MAYOR’S EXECUTIVE BUDGET CAPITAL PLAN FOR 2001-2004 In April the Mayor proposed a four-year capital spending plan totaling $24.9 billion for fiscal years 2001 to 2004. This is a 38.7 percent increase compared with the $18.0 billion in projected commitments for 1997-2000. While the current plan is the largest four-year capital plan ever proposed, the city still faces an enormous gap between its capital infrastructure needs and available resources. The City Comptroller has estimated that $92 billion in capital spending is required over a ten-year period to bring the city’s infrastructure up to a state of good repair and address some (but not all) of its new capital needs. At the same time, the city is currently running up against a constitutionally imposed limit on its indebtedness. Thus, even maintaining the high level of investment proposed by the Mayor would fall short of the identified need, and still exceed the city’s current legal borrowing capacity. The city faces a dilemma: how to meet its capital needs with higher levels of investment while maintaining affordable levels of indebtedness and debt service. To help increase public awareness and understanding of the capital budget, the Independent Budget Office (IBO) is providing this review of the Mayor’s proposed capital plan for fiscal years 2001-2004. In this report we provide an update on the status of the fiscal year 2000 capital plan, including a review of City Council and Borough President capital allocations. For each agency, we provide a synopsis of proposed capital commitments and major projects, and compare the proposed plan with the projected total for the previous four-year period, 1997-2000. To briefly summarize the proposed capital plan: • Environmental protection consumes the largest share of the capital budget plan for 2001-2004—24.7 percent, or $6.2 billion—and also shows the largest increase from the previous four years, 71.4 percent. • Education makes up the next largest share of the capital plan—$5.5 billion, or 21.9 percent. Over 99 percent of this category is for the School Construction Authority and other Board of Education capital spending ($5.4 billion). The city also proposes contributing $29 million toward the CUNY capital plan. • Transportation absorbs 20.2 percent of total planned commitments, or over $5.0 billion, including the city’s subsidy to the MTA capital program. • Housing and Economic Development commitments total $2.2 billion—8.7 percent of planned commitments. Planned housing commitments total $1.5 billion. Proposed economic development projects will total another $676 million. • The remainder of the capital budget—$6.0 billion, or 24 percent of the total—falls under the category of City Operations and Facilities, and includes such important functions as police, fire, courts, parks, libraries, and health and social service agencies. Analysis of the Mayor’s Executive Budget Capital Plan For 2001-2004 June 2000 Note: Unless otherwise noted, all references to years in both text and figures denote New York City fiscal years (July 1 to June 30). New York City Independent Budget Office Table of Contents I. Introduction ................................................................................................................................2 II. The Capital Commitment Plan by Major Area ........................................................................ 4 Overview .......................................................................................................................................... 4 A Note on Terminology and Methodology ................................................................................ 4 Status of the 2000 Capital Plan................................................................................................. 5 Council and Borough President Capital Allocations .................................................................. 6 Environmental Protection.................................................................................................................. 7 Education ......................................................................................................................................... 8 Board of Education ................................................................................................................... 8 CUNY ...................................................................................................................................... 9 Transportation................................................................................................................................. 10 Department of Transportation ................................................................................................. 11 New York City Transit ............................................................................................................ 11 Housing and Economic Development ............................................................................................. 12 Housing .................................................................................................................................. 12 Economic Development .......................................................................................................... 14 City Operations and Facilities ......................................................................................................... 15 Correction and Juvenile Justice ............................................................................................... 15 Fire ......................................................................................................................................... 16 Police ..................................................................................................................................... 17 Sanitation ............................................................................................................................... 17 Parks and Recreation .............................................................................................................. 19 Cultural Affairs ....................................................................................................................... 20 Libraries ................................................................................................................................. 20 Courts ..................................................................................................................................... 22 Hospitals, Health, and Social Services..................................................................................... 23 Property and Equipment.......................................................................................................... 26 Endnotes ........................................................................................................................................ 27 Contributors to this Report ..................................................................................inside back cover 2 Analysis of the Mayor’s Executive Budget Capital Plan For 2001-2004 June 2000 I. Introduction Where to Draw the Line? A few items seem to fall into a gray area between the Why a Separate Capital Budget? capital and expense budgets, including fixed assets such as personal computers, desks and chairs, and Almost all state and local governments in the United vehicles. The line between what is a capital item and States maintain a capital budget or plan distinct from what is not must be set somewhere, and is inevitably their operating (or, as it is known in New York, somewhat arbitrary. Under current city rules, any expense) budget. The expense budget funds current purchase over $35,000 which has a projected useful operations and services, including the salaries of life of five years or more is considered a capital item. government employees and routine operating expenses (On January 1, 2000, the threshhold amount was like printer and copier paper, pens and pencils, increased from $15,000, where it had been since 1979.) magazine and newspaper subscriptions, printing services, postage, rent and utilities, and similar items. Two recent examples illustrate some of the complexities of determining what is and is not a capital project: Capital budgets generally fund fixed assets used either in support of government operations (such as • Last year, the Comptroller disallowed a $64.9 government offices, schools, prisons, police and fire million leachate control system for the Fresh Kills stations) or for general public use (such as roads, landfill in the Department of Sanitation’s capital bridges, water mains and sewers, libraries, and parks). plan, because the landfill is slated to close in 2002 Their most salient characteristic is that they have long and thus has a useful life of less than five years. useful lives. A firehouse, playground, or public school The project must now be financed from the building will be in service for many years (91 percent Department of Sanitation’s expense budget. of New York City public school buildings are at least 25 years old). • The increase in the threshhold amount for a capital project to $35,000 resulted in the shift of a total of There are two reasons to separately budget for capital $9.3 million from the Department of Housing 1 items: Preservation and Development’s (HPD) capital budget to its expense budget. These funds were • As a matter of equity,
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