The Way We Were -The Way We Are

January, 2013

Albany, New York

NEW YORK STATE COUNTY HIGHWAY

SUPERINTENDENTS ASSOCIATION

THE WAY WE WERE

THE WAY WE ARE NOW

Understand the history and status of current funding programs.

Gain an understanding of Forward Four and what it means to

your 20% share of Federal Aid Projects.

Understand how declining tax revenues and New York State’s

2% Tax Cap are impacting County budgets.

Learn how other County Highway Departments are overcoming

the challenges faced in today’s economic and political

environments.

There was a time that many of us would have loved to work for County

government.

There was a time when working for the County government meant being much

appreciated and duly rewarded during a satisfying career.

It was also a pretty sweet deal after retirement, too.

It was soul-satisfying work that involved helping provide programs and services

to the County’s residents, along with all the other people who depend on the

various County departments.

When your days of service were over, you could look forward to a nice payoff on

the back end that included the ability to retire at an age when you could still

enjoy the fruits of your labor.

Modified from Eugene Kane, 11/19/2012, Journal Sentinel, Milwaukee, Wisconsin -

http://www.jsonline.com/news/milwaukee/county-workers-say-rules-attitudes-are-changing-th340oi-134187373.html

Today there are fewer opportunities for employment in County government.

It is becoming more difficult to attract and retain quality people.

There is less job security than ever before.

Employee compensation and benefits are being reduced.

There is less money available for staff development and training.

Job satisfaction is declining for many County workers.

Retirement benefits are being reduced.

We are struggling to keep our highways and bridges in good repair.

From 1950 until 2000, sixty-four percent of the population worked, owned their

homes and properties, and paid property taxes.

Source: http://en.wikipedia.org/wiki/File:US_employment_1995-2012.png

Since 2000, the percentage of people working has declined to fifty-eight percent.

Fewer people working means more people relying on the government. Today in

New York State, nine State mandates consume ninety percent of the County

property tax levy:

• Medicaid

• Public Assistance/Safety Net

• Child Welfare

• Preschool Special Education

• Early Intervention

• Indigent Defense

• Probation

• Youth Detention

• Pensions

Source: New York State Association of Counties

So when you do the math, just 10 percent of the tax levy is left

for other “Discretionary Spending”:

• Roads

• Bridges

• Public buildings

• Parks and trails

• Waste and refuse

• Other infrastructure

• Cornell Cooperative Extension

• Historical Societies

• Libraries

• Soil and Water Conservation Districts

• Economic Development Agencies

The Consolidated Local Street and Highway Improvement Program (CHIPS)

was established by the Legislature in 1981. The applicable rules for the Program

are contained in Section 10-c of the State Highway Law.

The Marchiselli or Municipal Streets and Highways Program partially funds

the local match for Federal Aid projects.

Marchiselli typically covers

75% of the local matching

share (20%) or 15% of a

Federal Aid project. It is

authorized under

80-b, 1991

New York State Highway

Laws.

In May of 2012 the NYSDOT formalized a policy that focuses on preservation and

safety of existing transportation infrastructure. The Comprehensive Policy Update is

known as “Forward Four”. Forward Four has the following four principals:

• Preservation First;

• System Not Projects;

• Maximize Return on Investment, and

• Make it Sustainable

This is policy is a shift from the “Build New” and “Worst First” policies of the past

and is already beginning to impact the way we plan our projects:

On October 17, 2012 NYSDOT issued Engineering Bulletin 12-042, which is

intended to realign project eligibility criteria for Marchiselli funds with the asset

management-based preservation strategies.

These changes are now also incorporated into chapters 3 & 4 of the Procedures

for Locally Administered Federal Aid Projects (PLAFAP) manual

New York State’s CHIPs and

Marchiselli programs have been

frozen for years at $363 Million

and $39 million, respectively.

What is worse, the mechanisms for

funding these programs are not

sustainable.

The new Federal transportation authorization “Moving Ahead for Progress in the

21st Century” or MAP 21” is not yet well understood. The new authorization does

not significantly increase Federal Aid for transportation infrastructure and the

resources for locally administered projects will continue to fall short of our needs.

For many years, the price and availability of petroleum products, including

gasoline, diesel fuel and asphalt was not a significant concern. .

The price of gasoline is near historic high points and is likely to

stay high or increase.

Source: http://gasbuddy.com/gb_retail_price_chart.aspx

The price of diesel is near historic high points and is likely to

increase.

Source: http://blog.transplace.com/archive/tags/Diesel%20fuel%20prices/default.aspx

The cap also applies to the

property tax levies of school

districts and special districts

like fire departments, libraries,

sewer and water systems.

The Property Tax Cap

Legislation (Laws of New

York, 2011, Chapter 97 –

Part A) is actually an

amendment to General

Municipal Law.

Effective on or after Jan. 1, 2012, the Property Tax Cap Legislation limits the

annual growth of property taxes levied by local governments to 2 percent or the

rate of inflation, whichever is less.

Source: http://www.empirecenter.org/Special-Reports/2011/11/proptaxcapguide113011.cfm

Just 13 of the 57 Counties in New York State have passed laws allowing

them to exceed the tax cap. Source: New York State Association of Counties 12/19/12

County Highway Departments are between a Rock and a Hard Place.

•Unfunded Mandates

•Increasing Costs

•Aging Infrastructure

•Changes in Funding

Programs and Policies

•Tax Cap

•Decreasing Tax Base

Our next two speakers will share with you the challenges they

have faced and the solutions they have developed to overcome

those challenges.

Chemung County

Essex County

Chemung County maintains 250 miles of County Highways and 148 County & Town Bridges.

The primary driver for change at the Chemung County DPW has been a shrinking

budget. Our budget is12% less now than it was in 2008.

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Chemung County DPW Budget

In response to budget reductions, we have:

• Reduced our workforce by 23% from 48 in 2006 to 37 in 2012;

• Employ 14 seasonal workers in summer as laborers;

• Employ 2 seasonal employees in winter with CDLs:

• We still use two operators per truck; we plan to go to one person plowing in

the future.

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Chemung County DPW Labor

Better Management of Assets:

• Road scoring and traffic counts are used to justify roadway projects;

• Removed or closed 3 bridges from 2008 to 2012:

• City of Elmira Bridge – Saved $3 million;

• Kahler Road Bridge - Saved $2.5-3 million;

• Cemetery Hill Road Bridge – Saved 0.5 million.

• Many of our salt trucks have ground speed indexed spreaders and GPS to track

where and how much salt is applied - We also use this technology on the sweepers;

• We use carbide edges on our plows. They are more expensive but they last much

longer; however, they can damage roads.

• A new fueling facility that fuels vehicles approximately 4x faster - Saves down-time.

Rising equipment prices have forced us to be creative and share the cost

with other agencies through Equipment Ownership Agreements and Cross-

Jurisdictional Agreements:

• Joint ownership of a Case 946G Grader ($250,000) - Chemung County, Town

and Village of Horseheads share 70/15/15 based on historical use;

• Steuben County recently purchased a Road Reclaimer. Chemung County will

sign an agreement to pay for its use - less than buying and less than renting from

an equipment dealer;

• Chemung County and the City of Elmira use the NYSDOT Region 6 Under

Bridge Inspection Unit (UBIU) to address bridge flags & repairs flags;

• NYSDOT Region 6 uses the County’s excavator and sweeper and the City of

Elmira’s paver;

• NYSDOT Region 6 applies herbicide to Chemung County guide rail.

• This was an economic development

project for the Chemung County IDA -

0.16 miles of road were built to provide

access for a relocated airplane museum;

• Chemung County Soil & Water

provided a dozer and rough-in of a

detention basin;

• The County’s scope of work for this

project included construction. (The IDA

paid for design.)

Chemung County DPW crews constructed County Route 87 in the Town of Big

Flats.

In the past we would have publicly bid the work; however, we estimate that we

saved approximately 30% on the construction cost by using in-house labor and

equipment.

• The bridge was eliminated because it

was redundant;

• The County’s scope of work included

engineering, demolition and restoration;

• No state or federal money involved;

• Our crews are HAZWOPER trained and

monitored for lead exposure.

Chemung County DPW crews demolished the Kahler Road Bridge.

In the past we would have publicly bid this demolition project; however, we estimate

that we saved approximately 40% by using in-house labor and equipment.

• The City and County’s scope of work included

engineering, survey, environmental, and

construction, and inspection.

• This was a federal aid project

• We utilized recycled materials (millings) for sub-

base and a virgin cold mix base and hot-mix binder

for the pavement system

Combined City of Elmira and Chemung County crews construct a truck

parking lot.

In the past we would have used a design consultant and publicly bid the work;

however, we estimate that we saved approximately 50% by using in-house labor

and equipment.

Other projects designed and built with in-house labor and equipment

include:

• Locally funded bridge on Wyncoop Road - County DPW provided all services from design

through construction. Approximately 50% savings over outsourcing design and construction.

• Locally funded culvert replacement - County DPW provided all services from design

through construction. Approximately 50% savings over outsourcing design and construction.

• Maple Avenue Paving Project - City of Elmira and Chemung County provided all services.

Utilized a City owned paver and County owned FlowBoys. 32% savings over outsourcing

design and construction.

Developing the skill sets of our County workforce allows us to

undertake challenging projects in-house at considerable savings.

• We have a robust training program with a strong focus on cross-

training:

• Hazwoper training

• MSHA training (we have a gravel pit)

• Tree assessment

• Training for equipment operation is primarily “On The Job”

• We also send staff to other Counties to learn:

• Construction of GRS Bridges in St. Lawrence County

• Pre-casting of box culverts in Steuben County

Our investment/sharing in equipment gives us the tools we need to do

our projects for less cost:

• Scheduling is critical– Our superintendents lay out the whole

construction season and develop a fluid, living document.

• We now have a Shared Services Coordinator:

• Creates performance metrics;

• Provides info to public officials;

• Takes the lead on asset management and road protection plans.

In summary:

• It is important to be open to new ideas and new ways of doing things;

• Learn from your neighbors – NYSCHSA is a great organization for this;

• Busy guys working on challenging projects are easier to manage than

bored, unchallenged guys who might be getting into trouble – up to a

point:

• You have to have the right people in the right places;

• Not everyone is able to handle an increased work load and a fast-

paced work environment.

Essex County has 357 miles

of highway…

and 133 bridges.

DPW also maintains 70 building

aged from 1828 to 2009.

Vehicle Maintenance Facility

servicing over 300 vehicles.

14 landfill compaction sites with

$2 million in transportation

equipment.

County owned fairgrounds with

municipal water and sewer.

Veterans Cemetery.

Safety and health for all 600

County Employees.

Year Tax Levy Rate / $1000

2004 $14,000,562 $3.91

2005 $13,548,044 3.47

2006 $13,548,044 2.98

2007 $13,379,520 2.61

2008 $13,245,725 2.20

2009 $13,245,725 2.00

2010 $13,555,340 1.98

2011 $14,724,045 2.15

2012 $16,276,443 2.41

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Essex County DPW Budget

There is a 15% drop in the budget since

2009

2013 Budget

Materials cut for the second year. 30% in 2012 and 15 % in 2013

Equipment purchases cut to zero for the second year.

12% of the work force lost since 2011.

How we adjusted

1. More work performed in house; road construction, paving, bridge building,

bridge maintenance.

Lowers capital cost.

Perform less maintenance decreasing infrastructure life.

Innovative Capital Projects

1. Used bridge spans.

2. Combine County forces with Contracted services to complete projects.

Shared Services

1. Towns perform snow and ice control on 85% of County Highways by lump

sum contract.

2. Utilize Towns for minor maintenance; mowing, brooming, ditching.

3. Contract specialized tasks; guide rail, concrete repair, roof repair.

Equipment

1. Bid new or used equipment.

2. Pool equipment throughout the county; State, County, Town and Village

Funding

1. Bond bridges

2. Utilize all of CHIPS funds for highway materials.

3. Recycle materials when possible; Inverset bridges, scrap metal.

Versatile Labor Force

1. All County highway crews are trained to perform all tasks.

2. All DPW employees are expected to work interdivisional; Buildings and

Ground, Highway, Safety and Health, Clerical, Engineering will chip in when

needed.

3. Make our own Storm water prevention products: sediment traps, waddles.

Summary

• Budgets are shrinking and cost are rising.

• More work in house.

• Innovative capital projects.

• Shared services.

• Options in equipment purchase.

• Creative funding.

• Versatile labor force.

Warren County

“These fellows say we won't fight! By Heaven, I hope I

shall die up to my knees in blood!"

MG Joseph Warren

Battle of Bunker Hill, 1775

•Est. 1813

•65,723 Residents

•869 sq mi

•93% in Adirondack Park

Department of Public Works

Warren County

Airport

•FAA Part 139 Airport

•5,000 and 4,000 foot runways

Parks, Recreation & Railroad

•14 mi Bikepath, 40 mi RR

•Fish Hatchery, Fairgrounds

•UpYonda Educational Center

Highways & Bridges

•247 centerline miles

•60 Highway Bridges

Engineering

•Engineering, CM and Project Admin

•Grant and Local Projects

Buildings and Grounds

•Day Maintenance Crew

•Night Cleaners

Warren County

DPW Total Expense

$-

$2,000,000

$4,000,000

$6,000,000

$8,000,000

$10,000,000

$12,000,000

$14,000,000

$16,000,000

$18,000,000

2009 2010 2011 2012 2013

Budget Year(Budgeted)

Warren County

Full Time Positions

100

105

110

115

120

125

130

135

140

2006 2007 2008 2009 2010 2011 2012 2013

Budget Year

136

107

•21% Reduction in Full Time Positions since 2006

Warren County

Warren County

Managing With Fewer Personnel:

• Sharing manpower between DPW Divisions

• Temporary Labor – 4 Seasonal hires in Highway Division, 1 part-time

cleaner

(also good way to recruit and test new hires)

• Set and enforce standards…disciplinary follow-thru

(some of the cuts were poor performers)

• Department Reorganization and Consolidation of Duties…update CS

Titles and create relevant positions

(Deleted 35 Positions, Created 6 New)

• One Person Plowing while on OT

Warren County

Warren County

Managing With Less Project Funding:

• Engineering Centric…virtually all repair/improvement work is

directed/managed by Engineering Division

- Less waste, better results, right priorities

• Not more, but better quality work…

- Crew Training…paving schools

- Better survey controls

• More in-house work

- Superstructure Replacements

- County Paving Crew!! Can’t do without it.

- Bridge Repair and Bridge Maint/washing

Warren County

- Quality mill & fill project, complex M&PT…county paving crew rebates are

good or they get redone.

Diamond Point Rd, I-87 Exit 23

Warren County

- County crews fabricated a 60 ft. temp bridge with 4 beams salvaged from a

Fed Aid bridge replacement project. Deck is panelized timber (2X8X16 PT on

edge).

Warren County

- County crews poured new stub abutments and placed this 70’ US Bridge.

Deck was LW concrete in deck pans with asphalt wearing surface.

Chatiemac Rd. Bridge

Warren County

What’s the next step for us in 2013?:

• Pavement Density Testing

- Working on roller patterns for better pavement

• Another in-house bridge replacement

- Back to Sodom Rd Bridge

• County Temp Bridge to be used on Fed Aid Project

- will result in credit for in-kind services

• Keep beating the drum of pavement grades, bridge ratings, and est.

Service Life-Miles…deferred projects cost more in the end.