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Presentation to Arkansas Blue Ribbon Committee on Highway Finance September 16, 2009 by Sean Slone Transportation Policy Analyst The Council of State Governments. Transportation & Infrastructure Finance in the States. The Council of State Governments. Founded in 1933 - PowerPoint PPT Presentation
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Transportation & Infrastructure Finance in the States
Presentation to Arkansas Blue Ribbon Committee on Highway FinanceSeptember 16, 2009 by Sean SloneTransportation Policy AnalystThe Council of State Governments
The Council of State Governments Founded in 1933 Serves the executive, judicial &
legislative branches of state government through leadership education, research and information services
Regionally-based, non-partisan forum
Headquartered in Lexington, KY with regional offices in New York, Chicago, Atlanta, Sacramento, Washington
The Council of State Governments
CSG Funding
Entrepreneurial Ef -forts (29%)Grants (28%)State Appropriations (43%)
Defining the Problem
America’s infrastructure crumbling 5-year investment of $2.2 trillion needed Needed annually to improve the nation’s
highways: $186 billion Current spending for highway capital
improvements: $70.3 billion ARRA funding for transportation
infrastructure projects: $48.1 billion
Transportation Funding
State Revenue Sources for Highways, 2007 Federal Funds
(24%)Fuel Taxes (24%)Bond Proceeds (15%)Vehicle & Truck Taxes (13%)State Investments (6%)General Funds (6%)Tolls (5%)Other (5%)Local Fund (2%)
Fuel Taxes
82% of federal transportation funding comes from federal fuel taxes
24% of state revenues for highways come from state fuel taxes
Motor fuel tax revenues continue to decline
Purchasing power has declined No longer sufficient to finance large
and growing infrastructure needs
Fuel Taxes
Converting from Cents Per Gallon Excise Taxes to an ad valorem tax
Indexing the fuel tax to some appropriate indicator such as the Consumer Price Index or the Construction Cost Index
Fuel Taxes
Several states adopted “variable rate” fuel taxes between 1974 and 1982.
Fuel prices fell rapidly in the 1980s and fuel tax revenues pegged to the price of fuel also produced dramatic reductions in revenue.
Michigan is the oft-cited example. About 15 states enacted some form of
indexing in the seventies or early eighties; most reversed themselves
Fuel Taxes
Indexing only a portion of the motor fuel tax
Coupling indexing with a “cap” on annual changes in the upward or downward direction in order to avoid wild fluctuations in tax revenue and in prices faced by consumers
Fuel Taxes Six states index their gasoline taxes to
inflation. Florida and Maine adjust gas taxes by the
CPI. Nebraska adjusts gas taxes by a state
funding formula. Kentucky, North Carolina and West Virginia
link their gas taxes to the fuel wholesale price.
Nine states also add a sales tax to gasoline purchases or tax fuel distributors or suppliers.
Recent Developments in the States Oregon enacted a law to increase fuel taxes by 25
percent and to raise registration, title and driver’s license fees.
Only three jurisdictions have enacted gas tax increases this year; Vermont and D.C. are the other two.
Minnesota increased their gas tax for the fourth time in 15 months this summer as part of a graduated increase approved by lawmakers last year.
Fifteen states considered raising state fuel taxes, motor vehicle fees , or both this year.
Tennessee’s gas tax of 21.4 cents per gallon has not been raised in 20 years.
Vehicle Fees
Relatively inexpensive to administer in relation to potential yield
Can be varied by vehicle size Can be set in rough relation to
highway cost responsibility Categorized as “very promising” as
both a short- and long-term funding option
Types: heavy truck fees, excise taxes on vehicle sales, personal property taxes
Other Tax & Fee Mechanisms Development Impact Fees Special Assessments Tax Increment Financing Community Facilities Districts Rental Car Taxes Cigarette Taxes Gambling/Lottery Revenues
Recent Developments in the States Colorado hiked vehicle registration fees to raise
about $250 million a year for transportation. Iowa lawmakers agreed to Gov. Culver’s plan to
borrow $830 million, with the bonds paid off from casino gambling profits.
Illinois financed a $31 billion construction program by legalizing video poker, raising fees and hiking taxes on candy, beauty products and alcohol.
North Carolina lawmakers approved legislation to allow counties to increase their sales taxes to support transportation projects.
Bonding Every state except South Dakota, Tennessee and
Wyoming has authority to issue state transportation bonds.
Bond funding provides states upfront capital to accelerate project delivery.
New state bond obligations in 2007 were valued at $19.8 billion.
At the end of 2006, outstanding state bond obligations reached a record $96.5 billion.
As credit markets have tightened, states seeking to issue bonds or access credit and private capital have encountered challenges.
Debt Financing
State Credit Assistance Federal Credit Assistance GARVEE Bonds Section 129(a) Loans Private Activity Bonds Build America Bonds Recovery Zone Bonds
State Infrastructure Banks Authorized by Congress in 1995 In 35 states and Puerto Rico Allow for leveraging of federal and state
resources by lending rather than granting federal-aid funds
Can be used to attract non-federal public and private investment
Revenues from loan repayment and interest are used to fund subsequent loans
Vary widely in size, from less than $1 million to more than $100 million
South Carolina is the leader in SIB financing
State Infrastructure Banks - Advantages Interest rate is set by the state Maximum loan term is 35 years State may be willing to take more
risk than a commercial bank would for a project with significant public benefits
A state infrastructure bank loan can make a large project affordable by allowing for smaller annual payments
State Infrastructure Banks - Obstacles States lacked legislative authority to
leverage their funds and increase the capitalization level of the bank
Complexity of federal requirements Requirements for smaller projects
can delay construction schedules and increase costs
Insufficient demand for loans due to limited marketing efforts
Alternative Transportation Funding Mechanisms Public-Private Partnerships Tolling Congestion Pricing Vehicle Miles Traveled Charges
Public-Private Partnerships
Collaborations between governments and private companies that aim to improve public services
and infrastructure by capturing efficiencies associated with private
sector involvement while maintaining the public accountability
of government involvement
Public Private Partnerships Full-Service Long-Term Concession or Lease Multimodal Agreement Joint Development or Transit-Oriented Development Build-Own-Operate Build-Operate-Transfer or Design-Build-Operate-
Maintain Design-Build-Finance-Operate Design-Build with Warranty Design-Build Design-Bid-Build Construction Manager at Risk Fee-Based Contract Services & Maintenance
Public-Private Partnerships More capital can be raised for a project Operating risk shifted to private investors and operators Costs and risks to taxpayers minimized Help taxpayers unlock the inherent value in toll roads lost
under government ownership Maximize the strengths of both the public and private
sectors Take advantage of the more businesslike approach of
private sector firms Private firms quicker to adopt cost-saving and customer-
service oriented technology Take advantage of the private sector’s diversified
knowledge and awareness of new methods in design, construction, operations and maintenance
Public-Private Partnerships Transparency & public participation Use of concessions Conflicts of interest Better value for the money Private partner must adequately maintain No non-compete clauses Facility will revert to the state Capping the rate of toll increases Revenue-sharing Length of agreement term
Tolling More than 5,000 miles of roads, bridges and
tunnels in the United States are tolled. State and local governments used $6.6
billion in toll revenues for highway investments in 2004 (7% of total revenues).
Increasing tolling on existing roads may be a challenging proposition.
Tolling on new roads or when adding additional lanes hold potential for generating new revenue.
Recent Developments in the States Legislators in Nevada rejected the state Department
of Transportation’s requests to have authority to pursue toll roads and public/private partnerships.
Texas failed to act to extend the state DOT’s ability to enter into new P3s.
Arizona and North Carolina’s Governors signed legislation allowing their state DOTs to enter into P3s.
West Virginia Turnpike increased tolls this year for the first time in 28 years.
Toll opponents in Massachusetts have filed ballot measures to eliminate all turnpike, tunnel and bridge tolls in the state.
Congestion Pricing
Mechanism that seeks to assess vehicles for the costs they impose on society, which may include time costs, external congestion costs and other variable costs, such as environmental and governmental
Types include: tolling the entire roadway, tolling existing lanes, tolling new capacity, imposing a “cordon fee” on any vehicle that enters a designated area.
Congestion Pricing Easy to implement Affordable and feasible administratively Makes enforcement more effective Manages demand on congested facilities,
thereby reducing traffic Can generate additional revenues that could
be used to expand highway and transit capacity in the corridor to further reduce congestion
Encourages the use of other routes and other modes of travel, such as public transportation
Congestion Pricing Impact on lower-income commuters Drivers unable to accept the notion that
they should be charged for congestion and don’t want to pay for roads currently free
Commuters feel they already “pay” for congestion through delays and stress.
Commuters don’t consider traffic conditions to be bad enough to warrant congestion pricing
Privacy concerns
VMT Charges Fee based on miles driven in the state,
collected at gas stations Oregon conducted a year-long pilot project;
other states have ongoing research projects GPS-based receiver estimates miles driven in
different zones Mileage data transmitted wirelessly to
receivers at gas stations Revenues directly reflect the amount of
travel VMT-based fees are in place in Europe
VMT Charges Technological and institutional challenges
remain University of Minnesota added to the body of
evidence recently NCHRP also recently addressed strategies for
shifting to VMT Three national commissions have said U.S.
should adopt a mileage-based approach Premature to rule out other types of taxes
and fees to supplement traditional fuel tax revenues
Criteria for Evaluating Revenue Mechanisms Revenue potential Sustainability Political viability Ease/cost of implementation Ease of compliance Ease/cost of administration Level of government Promotes efficient use Promotes efficient investment Promotes safe and effective system operations/management Address externalities Minimize distortions Promotes spatial equity Promotes social equity Promotes generational equity
Questions?
Sean SloneTransportation Policy Analyst
The Council of State [email protected] (859)244-8234