A Port Authority That Works
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A Port Authority That Works March 2014 Mitchell L. Moss Hugh O’Neill Mitchell L. Moss is Director of the Rudin Center for Transportation Policy and Management at New York University, and Henry Hart Rice Professor of Urban Planning at NYU’s Wagner School of Public Service. Hugh O’Neill is President of Appleseed, an economic development consulting firm based in New York City. From 1985 to 1991, he was Assistant Executive Director of the Port Authority of New York and New Jersey. This report and additional information on the Rudin Center, are available at www.NYURudinCenter.com A Port Authority That Works 3 Executive Summary The Port Authority of New York and New Airport) for two important purposes: Jersey has been a vital force in the physical and economic growth of the New York-New • To help meet the capital and operating Jersey region. During the past few years, needs of Port Authority facilities that don’t however, public attention has focused on the generate sufficient revenue to cover their Port Authority’s spending, management, and own costs; political interference in the agency’s operations. In recent weeks, several sources have called for • To allow the Port Authority to invest in reform, restructuring, or even abolition of the new facilities that over time will help to Port Authority. grow both its own revenues and the region’s economy. However, the critical problem facing the Port Authority today is not mismanagement, While this basic framework remains in place political abuse, or rivalry between New York today, the ways in which it is used have evolved and New Jersey. The fundamental challenge over time. is that the business model under which the Authority has operated for the past thirty years • In the late 1960’s the Port Authority took is no longer sustainable. For the New York- on responsibility for rehabilitation and New Jersey region to grow over the next fifty ongoing operation of the PATH system years, the Port Authority must rethink not only – a rail transit system that, as the PA and how it manages its business, but also how it leaders of both states realized, would never defines what that business is. cover its operating costs, let alone provide a return on the PA’s investment. Evolution of the Port Authority’s • In the early 1980’s (and with the approval of both states), the Authority’s mission Business Model expanded again, as the Port Authority took on a series of economic development Since the 1930’s, the Port Authority’s projects. While it was hoped that these consolidated funding structure has allowed it projects would be self-sufficient, they to use surplus revenues from its most profitable were not expected to generate significant facilities (such as the George Washington new revenues. Bridge and John F. Kennedy International A Port Authority That Works 4 • At the same time, the PA began to allocate • Since the early 1980’s, the burden that a portion of its surplus revenues and its the PATH system’s operating deficits and limited capital capacity to projects selected zero-return capital requirements impose by the governors of the two states, many on the Port Authority’s revenue-generating of which bore little or no relationship to businesses have grown larger. PATH’s the Authority’s mission or its existing deficit in 2012 totaled $370 million; and businesses. These projects were not during the same year Port Authority capital required to achieve the rates of return the spending on PATH (excluding the cost of PA normally required on its own projects; the new PATH station at the World Trade and many of them generated no revenue Center) totaled $179 million. at all. • The combined operating deficits of the Port Authority Bus Terminal and the bus An Era of Growth – but station at the George Washington Bridge an Eroding Base have also risen to $112 million in 2012. • During the past fifteen years, the Port Throughout the 1980’s and 1990’s, this Authority’s marine terminals have gone arrangement appeared to be working well, from a nearly break-even business to one as the Port Authority invested in upgrading that in 2012 had an operating deficit of the PATH system, oversaw the development more than $100 million. of new terminals at its airports and rail links to Newark and JFK, and improved the • In 2012 the World Trade Center – which competitive position of the region’s ports. Air in 2000 generated more than $33 million passenger traffic at the three airports has more in net revenue for the Port Authority than doubled since 1980; and since 1991, the – incurred a net loss of $46 million. In volume of container cargo moving through the the years since the September 11 attack, region’s ports has tripled. the Port Authority has invested billions of dollars in rebuilding the World Trade Fundamental changes undermined the Center. assumptions on which the Authority’s early- 1980’s business model were based – in • Even as the Port Authority’s financial particular, assumptions about the Authority’s foundations were eroding, the Authority own operating and capital needs, and its continued to finance projects chosen by revenue-generating capacity. the governors. Between 2002 and 2012, the Port Authority spent more than A Port Authority That Works 5 $800 million on such “regional projects.” governments and the Port Authority should During the next few years, PA spending consider these proposed guidelines: on zero-return state projects will increase even further, as a result of the Authority’s • The Port Authority’s financial resources agreement to provide $1.8 billion to fund are to be used solely for facilities, services, the rehabilitation of state highways and projects, and programs that are clearly bridges in New Jersey. aligned with its core mission. This doesn’t mean the Port Authority can’t take on As a result of these trends, the Port Authority new projects – but those that it takes on has, year by year, become more reliant on should be closely aligned with the PA’s core the revenues generated by its money-making businesses. facilities – its network of interstate bridges and tunnels, most notably the George Washington • It is no longer possible for the Port Bridge, and John F. Kennedy, LaGuardia and Authority to adequately fund its own Newark Liberty airports – to subsidize the facilities and services while simultaneously operation of, and investment in, those that allocating hundreds of millions for non- can’t cover their costs, and to help finance state revenue-generating state projects. The capital projects that provide no return to the governors of New York and New Jersey Port Authority. and the leadership of the Port Authority should agree to end the practice of using The increases in bridge and tunnel tolls that the Port Authority to fund zero-return the Authority has implemented in recent years state projects. are a direct result of its continuing reliance on its bridges, tunnels, and airports to fund its • At the same time, the Port Authority money-losing operations and to finance both should subject its own investment its own and the states’ capital projects. decisions to rigorous cost-benefit analysis. Any proposed projects that are not self- sustaining must be strategically justified. Several projects included in the Authority’s New Rules for the Port Authority recently approved ten-year capital plan – such as the proposed extension of the The current leadership of the Port Authority PATH system to Newark Liberty Airport deserves credit for its renewed focus on effective – have yet to be evaluated on a cost-benefit management of the Authority’s operations and basis. financial resources. But management reforms are not enough. It is essential to reconsider • To focus on protecting the health of its the purposes the Port Authority should serve, revenue-generating facilities, the Port and how its limited resources can be used most productively. The leadership of the state A Port Authority That Works 6 Authority must give heightened attention • It will be difficult to pursue the policies to its three major airports. They are essential proposal in this report unless the states not only to the Authority’s financial health, agree to end the division of the Port but to the continued growth of the region’s Authority into separate political fiefdoms. economy as well. The priorities should This will require multiple changes in include: redevelopment of the Central the way the agency is run, but there is Terminal at LaGuardia, modernization of probably one change on which the success Newark Terminal A, runway improvements of all others depends – reintegration of full at JFK and LaGuardia, accelerated responsibility for management of the entire deployment of next-generation air traffic organization in the position of Executive control technology, and ground access Director. improvements at all three airports. It should be stipulated, for example, that • While redevelopment of the World Trade the Deputy Executive Director (even if Center must remain one of the agency’s nominated by the Governor of New Jersey) top priorities, most of the Port Authority’s works solely for the Executive Director. other commercial and industrial properties Moreover, elected officials (of either state) are peripheral to its core businesses. It may should rely on the Executive Director be time to dispose of these properties. to appoint qualified individuals to high- level management positions at the Port • The Port Authority and the two states Authority. need to consider the long-term future of the PATH system. PATH is today the only The leadership of the Port Authority must major rail transit system in the U.S.