Section IV Capital Budget Capital Budget Table of Contents Page Summary ............................................................................................................................................... 405 Agency Analyses General Government Agencies Department of Administration ..................................................................................... 417 Executive Office of Commerce ................................................................................... 429 Department of Labor and Training .............................................................................. 433 Department of Revenue ............................................................................................... 435 Office of the Secretary of State .................................................................................... 437 Public Utilities Commission ........................................................................................ 439 Human Services Agencies Department of Children, Youth and Families .............................................................. 441 Department of Health ................................................................................................... 443 Department of Human Services ................................................................................... 445 Department of Behavioral Healthcare, Developmental Disabilities and Hospitals ..... 447 Education Agencies Department of Elementary and Secondary Education ................................................. 453 Public Higher Education .............................................................................................. 457 Rhode Island Council on the Arts ................................................................................ 473 Rhode Island Atomic Energy Commission .................................................................. 475 Historical Preservation and Heritage Commission ...................................................... 477 Public Safety Agencies Office of the Attorney General .................................................................................... 479 Department of Corrections ........................................................................................... 481 Judicial Department ..................................................................................................... 485 Military Staff................................................................................................................ 489 Rhode Island Emergency Management Agency .......................................................... 493 Department of Public Safety ........................................................................................ 495 Natural Resources Agencies Department of Environmental Management ................................................................ 499 Coastal Resources Management Council ..................................................................... 507 Rhode Island Infrastructure Bank ................................................................................ 509 Narragansett Bay Commission .................................................................................... 513 Rhode Island Resource Recovery Corporation ............................................................ 515 Transportation Agencies Department of Transportation ...................................................................................... 517 Rhode Island Public Transit Authority ........................................................................ 523 Rhode Island Airport Corporation ............................................................................... 527 Capital Budget Summary The Governor’s five-year capital recommendations for FY 2019 through FY 2023 call for total outlays of $4,861.1 million for the period. Financing the plan requires $1,228.2 million of debt issuances and $3,632.9 million from current revenue streams. Governor FY 2019 - FY 2023 Capital Projects Funding General Revenues RI Capital 0.2% Other Financing 12.8% 13.4% Other Tax Supported 2.1% COPS 0.3% Federal General Obligation 34.0% 11.5% Private & Other 27.9% The Assembly’s adopted plan includes capital outlays of $4,920.8 million for the period. Financing the plan requires $1,251.0 million of debt issuances and $3,669.8 million from current revenue streams. Assembly FY 2019 - FY 2023 Capital Projects Funding General Revenues RI Capital 0.2% Other Financing 13.4% 13.2% Other Tax Supported 2.1% COPS 0.8% Federal General Obligation 33.6% 11.3% Private & Other 27.6% 405 Outlays and Funding. The FY 2019 through FY 2023 plan includes $4,920.8 million of outlays on $1,272.7 million of project estimates. Average outlays would be $984.2 million per year for the five-year period with $784.7 million required at the end of the period to complete the projects. In a change in presentation, this year’s capital budget does not reflect debt service payments supported by Federal Highway Administration funds or gas tax. This corrects the prior practice of double-counting this expense. General Obligation Bonds Referenda. Financing the five-year plan is based on $557.5 million of general obligation bond debt issuances. This includes $367.3 million from new general obligation bonds to be presented to the voters on the November 2018 ballot. Consistent with last year, but in a departure from past practice, the budget does not assume any new referenda will go before the voters in November 2020 or November 2022. The average bond referenda over the past five elections was $189.3 million and the voters approved $227.5 million on the November 2016 ballot. The impact of future referenda is excluded from any bond or debt projections in the plan. The current proposal increases the five-year average to $244.8 million. Other Debt Approvals. The plan requires up to $41.8 million approved by the 2018 Assembly under the Public Debt Management Act for four projects, including three projects at the University. For the University, this includes $11.0 million for repaving, hardscape and landscape, $6.5 million for the first phase of utility infrastructure upgrades, and $2.3 million for the second phase of fire safety and protection projects for auxiliary enterprises. It also includes $22.0 million for renovations to Eleanor Slater Hospital. Financing. Paying for the five-year outlays includes $1,251.0 million from debt financing and $3,669.8 million from current or pay-go sources. Pay-go represents 74.6 percent with debt funding being 25.4 percent. Debt Levels. Total net tax supported debt decreases during the period through FY 2023 by $120.0 million from $1,851.0 million to $1,650.5 million. Past practice indicates that debt levels will be significantly higher as more projects are added within the five-year period of this capital budget and as noted previously, the plan identifies no new general obligation bond funded debt. Debt Ratios. Net tax supported debt would decrease from 3.2 percent of personal income reported for FY 2017 to 2.4 percent in FY 2023 assuming that the capital budget is not increased. However, as with debt levels, past practice indicates it is likely to be higher than projected especially since, as previously noted, the budget does not assume any new referenda will go before the voters in November 2020 or November 2022. Rhode Island Capital Plan Fund. The plan relies heavily on the use of Rhode Island Capital Plan funds, an important source of pay-go funds designed to reduce the need for borrowing. Total outlays for the five-year period are $660.3 million. 406 FY 2019 - FY 2023 Capital Projects by Function Public Safety 3.7% Natural Resources 21.2% Human Services Education 0.5% 13.6% Transportation 54.5% General Government 6.4% Outlays and Funding In order to support the maintenance, repair and construction of infrastructure throughout Rhode Island, the state has utilized both funding and financing for infrastructure. Funding can be considered as “pay-go,” which means that annual budgets include sufficient appropriations for projects to continue on schedule, without incurring long term debt. For Rhode Island, this is accomplished primarily through the Rhode Island Capital Plan Fund, which is described in greater detail elsewhere in this report. The advantage of this approach is that it does not limit future resources by incurring long term debt service payments; however, it does limit the extent of what can be accomplished to currently available sources. Because of this, short-term projects for relatively smaller amounts of money, such as asset protection projects, are better suited for pay-go funding, while long term and large scale infrastructure projects, such as the relocation of Interstate 195, are better suited for financing. Financing capital projects includes borrowing, usually in the form of long term debt such as general obligation or revenue bonds. General obligation bonds are backed by the full faith and credit of the state, with annual debt service appropriated from general revenues. This type of borrowing is more closely related to state agencies, and the authorizations for this debt appear as referenda on election year ballots. Revenue bonds are not backed by the full faith and credit of the state, and debt service is paid from a defined revenue stream, such as a user fee. This type of debt has historically been used by quasi-state agencies to fund long-term infrastructure projects. For example, the Turnpike and Bridge Authority uses