SECTION 8: PUBLIC AMENITIES
This section tabulates the level of state and local spending, relative to personal income, in categories of services generally provided by incorporated municipalities, but not always available elsewhere. Grouped as “public amenities” for the purpose of this report, these include public water supply, public sewers, public or publicly funded solid waste collection, professional fire protection, parks and recreation, cultural facilities, natural resources, and libraries. It also tabulates the number of state and local public employees in these categories, relative to population, and their pay, relative to the private sector. Data is presented for different regions of New York State, the national average, and New Jersey. The 1997 census of governments is the primary source of information.
Since not everyone has such services, they might perhaps be considered optional, or unnecessary. Another way to look at them is that they are part of the price of density. Residents of cities and dense suburbs cannot drill their own water wells, use cesspools, or bury or burn their own solid waste, the way those in some rural communities can. The potential for fires to spread to nearby buildings, combined with adults working far from their homes, generates a need for professional fire protection. Public parks substitute for private yards in places where such yards are small.
The data show, however, that New York City’s spending in these categories is slightly lower than the national average, and lower than many dense urban counties around the country. New Jersey’s spending is lower still.
Chart 8.1:
Spending On Public Amenities
Sources: 1997 Census of Governments.
Income: Bureau of Economic Analysis.
Despite its
high taxes, New York City’s spending on public amenities is below average.
Since the City of New York offers all the public amenities discussed in this chapter, one might have assumed that these services explain its higher taxes. Not so. In reality, in Fiscal 1997 New York City spent 1.63 percent of its residents’ personal income on public amenities, somewhat less than the national average of 1.72 percent. New York City also spent less than counties containing many of the nation’s other major cities, such as Los Angeles (2.62 percent), San Francisco (2.49), Cook – Chicago (2.10), Baltimore City (2.64), and Philadelphia (1.98). Suffolk – Boston (1.36) and Dallas (1.55) spent less than New York.
Other areas of New York State spent about the same
on public amenities, as a share of their residents’ personal income,
as New York City. The Downstate Suburbs, which also tend to offer a
full range of these services, spent 1.63 percent of their residents’
personal income, the Upstate Metros spent 1.58 percent, and the Rest
of New York State spent 1.67 percent. New Jersey’s local governments
spent only 1.32 percent of personal income on public amenities. For
a spreadsheet of this data, with data for all New York State counties,
click here.
State Government
New York State is also below average. Most of the public amenities discussed in this section are provided almost exclusively by local governments, but states provide parks, recreation, culture, and natural resources services (hunting, fishing, conservation, etc.) as well. New York’s state spending on public amenities, at 0.14 percent of its residents’ personal income, was less then half the U.S. average of 0.29 percent of income. NJ was average.
Chart 8.2:
Spending On Public Amenities
Income, NY State, New Jersey, United States, 1972, 1987 & 1997
State Government
Sources: 1997 Census of Governments,
Income, Bureau of Economic Analysis.
New York’s local
government public amenities spending has fallen since FY 1972.
At one time, New York’s local governments spent far more on public amenities than they do today, and far more than the national average. In Fiscal 1972, they spent 1.93 percent of their residents’ personal income, 20 percent more than the national average of 1.60. By 1987, however, their spending had fallen to 1.67 percent of income, while the national average had risen to 1.69 percent. Falling spending on pubic water and sewers, and parks, recreation and culture, were the biggest factors. From 1987 to 1997, local government spending on public amenities fell again as a share of income in New York, and rose again in the nation, by modest amounts. New Jersey’s local governments spent less than average in these categories in 1972, even less in 1987, and even less in 1997.
At the state level, New York State’s spending on public amenities was slightly lower in Fiscal 1997 than in Fiscal 1972, while the national average was slightly higher. The State of New Jersey, however, spent more than twice as much in 1997 as in 1972, with many of the gains occurring between FY 1972 and FY 1987.
For a spreadsheet of this data, click here.
Chart 8.3:
Local Water, Sewer, And Sanitation Spending
Sources: 1997 Census of Governments;
Income: Bureau of Economic Analysis.
New York City’s
spending on sanitation was lower than the Downstate Suburbs or New Jersey.
NYC spent 0.33 percent of its residents’ personal income on sanitation in Fiscal 1997. That was 57 percent more than the national average (0.21 percent), and 73 percent more than in the Upstate Metros (0.19), but less than in the Downstate Suburbs (0.44 percent) or New Jersey (0.35). The Rest of New York State spent almost as much as New York City, as a share of its residents’ personal income, even though many parts of it do not offer municipal garbage collection. In the future, the cost of shipping New York City’s trash out of state, rather than to the Fresh Kills Landfill, may increase the City’s sanitation spending. To return to the public amenities spreadsheet, click here.
The City’s spending on public water and sewers was below the national average.
New York City spent just 0.78 percent of its residents’ personal income on public water and sewers, 8.2 percent lower than the national average of 0.85 percent of income. According to the 1990 Census of Housing, 99.9 percent of NYC residents had public water and 98.6 percent had public sewers, more than the national averages of 84.2 percent and 74.8 percent respectively. In the future, federally mandated spending on water filtration and additional sewage treatment may increase the City’s water and sewer spending. The Downstate Suburbs spent just 0.44 percent of their residents’ personal income on water and sewer, but just 66.8 percent of their housing units had public sewers. The Upstate Metros spent 0.70 percent; just 79.9 percent public of their housing units had public sewers. The Rest of New York State spent 0.64 percent, even though just 52.3 percent of its housing units had public water, and 45.4 percent public sewers. New Jersey spent just 0.51 percent, despite near universal public water and sewers.
Chart 8.4:
Local Fire Department And Libraries Spending
Sources: 1997 Census of Governments.
Income: Bureau of Economic Analysis
New York City’s spending on fire protection was about what one would expect for an all-professional force. New York City spent substantially more than the national average on its fire department, but its spending was proportional when the number of volunteer fire departments elsewhere is considered. New York City spent 0.43 percent of its residents’ personal income on fire protection, 43 percent more than the national average (0.30), and more than in the Downstate Suburbs (0.28), the Upstate Metros (0.38), the Rest of New York State (0.42) or New Jersey (0.24). According to the National Fire Protection Association (http://www.nfpa.org/), fire departments with all professional staff cover 43.2 percent of the nation’s population, those with mostly career staff cover 16.2 percent, and those with mostly volunteers cover 17.1 percent. Fire departments with all volunteer staff account for nearly three-quarters of all fire departments, but protect less than one quarter of the population.
Sources: 1997 Census of Governments.
Income: Bureau of Economic Analysis
The City’s spending
on libraries was about average in FY 1997.
New York City’s spent 0.10 percent of its residents’ personal incomes on libraries in fiscal 1997, slightly higher than the national average of 0.09 percent of income. Local governments in the Downstate Suburbs spent double the national average as a share of income in Fiscal 1997. Spending on libraries was lower than average in the Upstate Metros and the Rest of New York State, and slightly higher than average in New Jersey. To return to the public amenities spreadsheet, click here.
Chart 8.5:
Spending on Parks, Recreation, Culture, and Natural Resources
Sources: 1997 Census of Governments.
Income: Bureau of Economic Analysis.
New York City’s
spending on parks, recreation, and culture was far below average. In
fiscal 1997, New York City spent just 0.18 of its residents’ personal
income on parks, recreation, cultural affairs and natural resources,
just over half the natural average of 0.33 percent. New York City’s
spending as a share of income was far below most other major urban counties,
such as Maricopa – Phoenix (0.80 percent), Los Angeles (0.43), San Francisco
(0.81), Miami-Dade (0.50), Fulton- Atlanta (0.35), Dallas (0.28), Cook
– Chicago (0.56), Baltimore City (0.36), and Philadelphia (0.33). It
was about the same as suburban Cobb County, GA (0.16), where private
rather than public amenities are more common, and Suffolk – Boston (0.14).
Local governments in other parts of the state spent more than New York
City, but still less than the national average, while local governments
in New Jersey spent even less than New York City. Statewide, local spending
in this category fell from 0.33 percent of income in Fiscal 1972 to
0.23 in Fiscal 1997. Many suburban areas of New York State went through
a park development phase in the 1950s and 1960s, but some facilities
built at that time will be in need of reconstruction in the next few
decades, potentially increasing costs. To return to the spreadsheet
of this data, click here.
State Government
Sources: 1997 Census of Governments.
Income: Bureau of Economic Analysis.
New York State’s
spending on parks, recreation, culture and natural resources was also
low.
New York State led the nation in state park development at one time, but in Fiscal 1997 it spent only 0.12 percent of its residents’ personal income on parks, recreation, culture and natural resources, half the national average of 0.25 percent. New Jersey was slightly below average at 0.23 percent. While New York State and the nation were down slightly from 1972, New Jersey was up substantially, from 0.12 percent of income. Like its localities, New York has extensive park and recreation facilities built in prior decades, some of which require reinvestment.
Chart 8.6:
Charges for Public Amenities: Percent Of Spending
Sources: 1997 Census of Governments,
U.S. Department of Commerce, Bureau of the Census.
New York City’s
spending on parks, recreation, and culture was far below average.
In fiscal 1997, New York City spent just 0.18 of its residents’ personal income on parks, recreation, cultural affairs and natural resources, just over half the natural average of 0.33 percent. New York City’s spending as a share of income was far below most other major urban counties, such as Maricopa – Phoenix (0.80 percent), Los Angeles (0.43), San Francisco (0.81), Miami-Dade (0.50), Fulton- Atlanta (0.35), Dallas (0.28), Cook – Chicago (0.56), Baltimore City (0.36), and Philadelphia (0.33). It was about the same as suburban Cobb County, GA (0.16), where private rather than public amenities are more common, and Suffolk – Boston (0.14). Local governments in other parts of the state spent more than New York City, but still less than the national average, while local governments in New Jersey spent even less than New York City. Statewide, local spending in this category fell from 0.33 percent of income in Fiscal 1972 to 0.23 in Fiscal 1997. Many suburban areas of New York State went through a park development phase in the 1950s and 1960s, but some facilities built at that time will be in need of reconstruction in the next few decades, potentially increasing costs. To return to the spreadsheet of this data, click here.
Chart 8.7:
March 1997 Local Government Employment
Sources: 1997 Census of Governments.
Population: the 2000 Census of Population, unadjusted data.
Although New York City’s spending on public amenities was below average as a share of income, its employment in these categories was above average relative to population, due to high fire and sanitation employment.
New York City employed 452 workers in public amenities functions per 100,000 residents in March 1997, 33 percent more than the national average of 341. The Downstate Suburbs (363) and Upstate Metros (360) were somewhat above average, and the Rest of New York State (223) was far below average. New Jersey (336) was about average. Sanitation and fire were the biggest factors in the City’s higher employment.
The City had 197 fire department employees for every 100,000 residents, double the national average of 98, and far more than the Downstate Suburbs (56), the Upstate Metros (99), the Rest of New York State (59) or New Jersey (81). If one were to assume that by “mostly career” the National Fire Protection Association means 75 percent career staff, and by “mostly-volunteer” they mean 25 percent, then one would expect a 100 percent professional fire department to have 67 percent more employees relative to population than the national average.
The City had 115 sanitation employees for every 100,000 residents, triple the national average of 38, and far more than the Downstate Suburbs (57), the Upstate Metros (50), the Rest of New York State (44) or New Jersey (57). New York City spent just 57 percent more than average, rather than three times as much, because many municipalities fund garbage collection (thus recording spending) but hire private companies to do the work (thus not recording employment).
New York City, the Upstate Metros, and New Jersey were
above average in libraries employment and below average in parks and
recreation employment; the Downstate Suburbs were above average in both,
the Rest of New York State below average in both. Only the Upstate Metros
were above average in water and sewer employment, despite providing
service to a below average share of their residents. New York City’s
local government employment was less than half the national average
in water and sewer, in part because private contractors do much of its
water and sewer main replacement work. To return to the local government
employment and payroll spreadsheet, click here.
Chart 8.8:
March 1997 Payroll Per Employee
Agencies vs. the National Average
Sources: Local government: 1997 Census of Governments, March 1997 payroll divided by full time equivalent employment. Private Sector: Bureau of Economic Analysis, 1997 annual private earnings by place of work divided by annual average private employment. Private figures for New York City and the Downstate Suburbs are aggregated because they constitute an integrated labor market; data for finance industry workers in Manhattan are excluded.
In general,
in all parts of New York State and New Jersey, public employees in public
amenities functions earn about as much as their private-sector counterparts
relative to the national average.
As the chart shows, in general, in all parts of New York State and New Jersey public employees in public amenities agencies earned just slightly more, or slightly less, than their private sector counterparts relative to the national average. For example, in Downstate New York, private sector workers (excluding the high-paid finance industries in Manhattan) earned 29 percent more than the national average. In New York City, public water and sewer employees earned 20 percent more than average, fire department employees earned 19 percent more than average, parks and recreation employees earned 21 percent more than average, and library employees earned 16 percent more than average. In the Downstate Suburbs, public water and sewer workers earned 27 percent more than average, library workers earned 16 percent more than average, and sanitation workers earned 27 percent more than average. Similarly, in the Upstate Metros, both the average private-sector worker, and most local government employees in public amenities categories, earned about the same as their respective national averages. In the Rest of New York State, both private sector workers and public sector workers in these categories earned much less than average.
On the other hand, New York City sanitation employees earned 64 percent more than their counterparts in the nation in March 1997. That was high compared with private sector workers in downstate New York, as well as with public sanitation workers in New Jersey and the Downstate Suburbs. Sanitation is one of the few categories in which New York City employees earned more than those in the suburbs.
To return to the employment and payroll spreadsheet, click here.
Chart 8.9:
Parks, Recreation, And Culture Spending
NYC data: Annual Report of the
NYC Comptroller. Income data: Bureau of Economic Analysis.
New York City’s spending on parks, recreation and culture was close to the national average during the 1980s, but has been far below average since then.
Through much of the 1980s, New York City was at approximate parity with the national average in its spending on parks, recreation, and culture. In FY 1990, New York City’s spending in this category equaled 0.26 percent of its residents’ personal income, right at the national average of 0.26 percent. Along with transportation, however, parks and recreation suffered the deepest cuts in the early 1990s recession, during which the income of city residents continued to rise. As a result, the City’s spending fell to 0.17 percent of its residents’ personal income in FY 1996, 35 percent below the national average, which remained at 0.26. The City’s spending increased slightly, to 1.9 percent of income, in FY 1999. During the latter period, he parks department also benefited from “work-fare” employees. Park cleaning is one of the duties they have been able to do in order to earn their benefits.
Section 8 Summary
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Despite its high taxes, New York City’s spending on public amenities, as a share of its residents’ personal income, was low compared with the national average, and compared with many other major urban counties. Low water and sewer, and parks, recreation and cultural affairs spending, was the primary reason.
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New York City’s employment relative to population, and spending relative to income, were above average in the fire protection and sanitation categories. Many communities rely on volunteer fire departments, and either do not provide solid waste collection or hire private companies to do the work.
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New York City and New York State both spent far less than the national average, and far less than they once did, on parks, recreation, culture and natural resources. New York City also spent far less than local governments in the counties containing many other major cities. Local governments elsewhere in New York State and New Jersey also spent less than average, but the State of New Jersey has increased its spending considerably, and was at the national average in FY 1997.
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New York City spent less than average on public water and sewers, and less than many places where a substantial share of housing units rely on cesspools and wells. On the other hand, it may be that the need to develop water and sewer systems initially accounts for the high expenditures in such areas.
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Libraries are an above average public amenity priority in Downstate New York and New Jersey.
To go to Section 9, click here.
© 1996-2001, Taub Urban Research Center, New York University
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