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Special Taxing Districts. A Presentation to the Property and Local Tax Division November 10, 2011 House Research Department Deborah Dyson Steve Hinze Joel Michael. Special Taxing Districts What Are They?. - PowerPoint PPT Presentation
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Special Taxing Districts A Presentation to the Property and Local Tax Division November 10, 2011 House Research Department Deborah Dyson Steve Hinze Joel Michael
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Page 1: Special Taxing Districts

Special Taxing Districts

A Presentation to theProperty and Local Tax Division

November 10, 2011

House Research Department

Deborah DysonSteve HinzeJoel Michael

Page 2: Special Taxing Districts

House Research Department 2

Special Taxing DistrictsWhat Are They?

• Special districts: Special or limited purpose units of local government (as contrasted with general jurisdiction units, such as cities and counties)

• Special taxing districts: Special districts with taxing powers; many special districts do not have the power to tax

• Our definition: Special taxing districts with property tax powers but not school districts

11/10/2011

Page 3: Special Taxing Districts

House Research Department 3

Reasons to EstablishSpecial Taxing Districts

State and/or local governments may have a variety of purposes for authorizing or creating special taxing districts:• Geographic service area is larger or smaller

than the area of the city or county, e.g.:– Watershed districts– EMS districts– Sanitary districts

11/10/2011

Page 4: Special Taxing Districts

House Research Department 4

Reasons to Establish (cont’d)

• Specialization:– Focus attention on narrow task or problem, which

may be low priority for city or county– Attract members for governing body or staff with

specialized expertise (e.g., in managing an airport or hospital)

• Joint powers arrangements between several units is too cumbersome – it’s more efficient to set up a separate unit of government

11/10/2011

Page 5: Special Taxing Districts

House Research Department 5

Reasons to Establish (cont’d)

• Financing flexibility –– Allow for alternative distributions of the governmental

costs for certain services– Avoid limits such as levy limits or debt limits (e.g.,

election requirements) on financing for perceived needs– Keep debt off city’s or county’s balance sheet

• Satisfy federal law (e.g., it required HRAs to be set up to get urban renewal grants in 1950’s and 1960’s)

• Insulate decision-making from “politics”

11/10/2011

Page 6: Special Taxing Districts

House Research Department 6

Special Taxing DistrictsPay 2011 Levies

Function or Purpose # Levying

Amount (000)

% of Total

Housing and economic develop 111 $54,442 17.3%Health and safety 20 9,102 2.9%Transit and transportation 14 51,720 16.5%Water and sewer 67 49,221 15.3%Metropolitan agencies and RDCs 12 95,316 30.3%Hennepin miscellaneous 3 54,708 17.4%

11/10/2011

Page 7: Special Taxing Districts

House Research Department 7

Special Taxing District Levies (in millions)

1995 1997 1999 2001 2003 2005 2007 2009 2011$0

$20

$40

$60

$80

$100

$120

$140

Water & sewerEconomic Dev AgenciesHealth-safetyTransit & TransportationHennepin Co. misc.Metro Agencies & RDCs

Taxes Payable Year

11/10/2011

Page 8: Special Taxing Districts

House Research Department 8

Special Taxing District Levies Excluding Metro Agencies and Hennepin Co. miscellaneous (in millions)

1995 1997 1999 2001 2003 2005 2007 2009 2011$0

$10

$20

$30

$40

$50

$60

Water & sewerEconomic Dev AgenciesHealth-safetyTransit & Transportation

Taxes Payable Year

11/10/2011

Page 9: Special Taxing Districts

House Research Department 9

Special Taxing District Levies as a Percentage of All Property Tax Levies

11/10/2011

1995 1997 1999 2001 2003 2005 2007 2009 20110.00%

0.50%

1.00%

1.50%

2.00%

2.50%

3.00%

3.50%

4.00%

Taxes Payable Year

Page 10: Special Taxing Districts

House Research Department 10

Housing and Economic Development:Types of Districts

General law authorizes cities and counties to form three types of special districts for economic development and housing purposes:

• Housing and Redevelopment Authorities or HRAs• Economic Development Authorities or EDAs• Port Authorities

Some communities have special laws that modify these general powers slightly

11/10/2011

Page 11: Special Taxing Districts

House Research Department 11

Housing and Economic Development: Purposes and Functions of Districts

• Housing– Development, financing, and operation of

affordable housing (privately owned)– Financing and operation of public housing

• Redevelopment – redevelop blighted areas

11/10/2011

Page 12: Special Taxing Districts

House Research Department 12

Housing and Economic Development: HRAs: Establishment & Governance

• May be created by:– Cities– Non-metro counties and designated metro

counties– Groups of counties and cities (e.g., multi-county

HRAs)• Governing body is appointed by city or county

(city council and county board members often serve)

11/10/2011

Page 13: Special Taxing Districts

House Research Department 13

Housing and Economic Development: HRAs - Levies and Bonding Powers

• Pay 2011 levy = $44.8 million• Levy limit is 0.0185% of taxable market value• Number of HRAs levying taxes = 81 for pay

2011• May issue GO bonds (backed by limited HRA

tax only) and revenue bonds for projects

11/10/2011

Page 14: Special Taxing Districts

House Research Department 14

Housing and Economic Development: Economic Development Authorities

• Purpose is to encourage redevelopment and economic development

• Established by either cities or counties• Governing body is selected by the city or

county (city council or county board members often serve)

11/10/2011

Page 15: Special Taxing Districts

House Research Department 15

Housing and Economic Development:EDAs – Levies and Bonding Powers

• Pay 2011 levy = $5.2 million• Levy limit is 0.01813% of taxable market value

(slightly lower than the HRA limit)• Number of EDAs levying in 2011 = 26• May issue GO bonds (with election) and

revenue bonds

11/10/2011

Page 16: Special Taxing Districts

House Research Department 16

Housing and Economic Development: Port Authorities

• General purpose is to encourage redevelopment and economic development

• May be established by cities that are authorized by special laws to do so (i.e., to exercise the general law powers) – 26 cities have these laws

• St. Paul Port Authority and Seaway Port Authority (Duluth) directly established by law

11/10/2011

Page 17: Special Taxing Districts

House Research Department 17

Housing and Economic Development: Port Authority Levies and Bonding Powers

• Pay 2011 property tax levy = $4.1 million• Levy limit = 0.01813% of taxable market value

(identical to the EDA limit)• Number levying in 2011 = 4• May issue GO bonds (without election) and

revenue bonds

11/10/2011

Page 18: Special Taxing Districts

House Research Department 18

Economic Development Agency Levies (in millions)

11/10/2011

1995 1997 1999 2001 2003 2005 2007 2009 2011$0

$10

$20

$30

$40

$50

$60

Nominal

Inflation-adjusted

Taxes Payable Year

Page 19: Special Taxing Districts

House Research Department 19

Health & Safety Purpose:Types of Districts

General law authorizes:• Hospital districts• Emergency service (EMS) districts

Special laws authorize ambulance districts, fire protection districts, hospital districts, and one medical clinic district

11/10/2011

Page 20: Special Taxing Districts

House Research Department 20

Health & Safety:Hospital Districts

• Used to acquire, construct, and operate hospitals and nursing homes

• Two or more cities may create; several are authorized by special laws

• Pay 2011 levy = $6.9 million• Number levying = 14 for pay 2011 (as many as

16 in 1990s)

11/10/2011

Page 21: Special Taxing Districts

House Research Department 21

Health & Safety:EMS Districts

• Purpose is provide method of financing EMS services over service area

• Two or more cities or counties may establish• Levy limit is lesser of $400,000 or 0.048% of

taxable market value• Pay 2011 property tax levy = $267,000• Number levying = 3

11/10/2011

Page 22: Special Taxing Districts

House Research Department 22

Health & Safety:Special Law Districts

• Cloquet Area Fire Protection and Ambulance Special Taxing District (2009) – $1.76 million levy for pay 2011

• Moose Lake Fire Protection District (1987) - $136,000

• Floodwood Ambulance District (1993) – $25,000• East Lake Medical Clinic District (1989) – $30,000

11/10/2011

Page 23: Special Taxing Districts

House Research Department 23

Health & Safety District Levies(in millions)

11/10/2011

1995 1997 1999 2001 2003 2005 2007 2009 2011$0$1$2$3$4$5$6$7$8$9

$10

Nominal

Inflation-adjusted

Taxes Payable Year

Page 24: Special Taxing Districts

House Research Department 24

Transit and Transportation:Types of Districts

Transit and transportation purpose special taxing districts include:• Regional rail authorities• Transit districts (outside of 7-county metro

area)• Airport authorities

11/10/2011

Page 25: Special Taxing Districts

House Research Department 25

Transit and Transportation:Regional Rail Authorities

• Preservation and improvement of local rail service for ag, industry, or passengers

• Members of governing body are appointed by county• Pay 2011 levy = $48.7 million• Levy limit = 0.04835% of taxable market value• Number levying in 2011 = 11 (9 are for passengers

and 2 for freight)• May issue “revenue” bonds, backed by limited

property tax

11/10/2011

Page 26: Special Taxing Districts

House Research Department 26

Transit and Transportation:Transit Districts

• Provide transit service in defined areas, limited to nonmetropolitan counties

• Two districts established by law with members appointed by the cities and counties

• Pay 2011 levy = $2.4 million• Levy limit = 0.12089 (St. Cloud area); 0.07253

(Duluth)• Both districts have bonding authority

11/10/2011

Page 27: Special Taxing Districts

House Research Department 27

Transit and Transportation:Airport Authorities

• Acquire, construct, and/or operate airports• Pay 2011 levy = $670,000• Number levying = 2 (Thief River Falls and

Bemidji)• No levy limit, but levy must be approved by

2/3rd vote• Authority to issue bonds, including GO bonds,

with 60% vote

11/10/2011

Page 28: Special Taxing Districts

House Research Department 28

Transit & Transportation Levies(in millions)

11/10/2011

1995 1997 1999 2001 2003 2005 2007 2009 2011$0

$10

$20

$30

$40

$50

$60

Nominal

Inflation-adjusted

Taxes Payable Year

Page 29: Special Taxing Districts

House Research Department 29

Water and Sewer:Type of Districts

• Watershed Districts • Water Management Organizations –

metropolitan area • Sanitary sewer districts

11/10/2011

Page 30: Special Taxing Districts

House Research Department 30

Water and Sewer:Watershed Districts

• Solve and prevent surface and groundwater water-related problems

• Established by order of BWSR after petition of citizens or local governments and making findings

• Pay 2011 levy = $39,702,000• Number levying = 46 districts, includes metro WD• levy limits: different limits for different purposes• May issue bonds or have member counties issue

bonds for district

11/10/2011

Page 31: Special Taxing Districts

House Research Department 31

Water and Sewer:Watershed Management Org.

• Plan and implement metropolitan area surface water management act

• Mandatory in metro area, can be a watershed district, joint powers, or county organization

• Pay 2011 levy = $8,893,000• Number levying = 11 of 18 JPA, county WMOs• levy limit is set in the ordinance of the WMO• If a watershed, may issue bonds

11/10/2011

Page 32: Special Taxing Districts

House Research Department 32

Watershed & Water ManagementDistrict Levies (in millions)

11/10/2011

1995 1997 1999 2001 2003 2005 2007 2009 2011$0

$10

$20

$30

$40

$50

$60

Nominal

Inflation-adjusted

Taxes Payable Year

Page 33: Special Taxing Districts

House Research Department 33

Water and Sewer:Sanitary Sewer Districts

• Collection and treatment of wastewater• Created by order of MPCA after petition process, or by

special law• 5 member boards selected by member units of

government; board maybe larger to insure at least one member per member local government

• Pay 2011 levy = $626,000• Number levying =10 (of approx. 60)• No levy limits• May issue GO bonds, requires an election

11/10/2011

Page 34: Special Taxing Districts

House Research Department 34

Sanitary Sewer District Levies(in millions)

11/10/2011

1995 1997 1999 2001 2003 2005 2007 2009 2011$0.0

$0.2

$0.4

$0.6

$0.8

$1.0

$1.2

Nominal

Inflation-adjusted

Taxes Payable Year

Page 35: Special Taxing Districts

House Research Department 35

Metropolitan Agencies and RDCs

• Metropolitan Council• Metropolitan Airports Commission• Metropolitan Mosquito Control Commission• Regional Development Commissions

11/10/2011

Page 36: Special Taxing Districts

House Research Department 36

Metropolitan Agencies and RDCs:Metropolitan Council

• Plan orderly and economical development of metro area; own, operate regional wastewater system, Metro Transit

• 17 members, 16 from districts, appointed by Governor• Pay 2011 levy: transit capital $42,179,000, other

$33,246,000• Levy limits for general nondebt, RALF, MLCA, • May issue debt for wastewater system (unlimited),

transit capital (limited), parks & open space (limited)

11/10/2011

Page 37: Special Taxing Districts

House Research Department 37

Metropolitan Agencies and RDCs:Metropolitan Mosquito Control

• Monitor and control mosquitoes, ticks and black flies in the district to protect the public from disease and annoyance

• 18 members, all county commissioners appointed by respective counties in metro area

• Pay 2011 levy = $16,758,000• Levy limit-yes, based on prior year• Cannot issue bonds

11/10/2011

Page 38: Special Taxing Districts

House Research Department 38

Metropolitan Agencies and RDCs:Metropolitan Airports Commission

• Owns and operates MSP and 6 reliever airports in the metropolitan area

• Governor appoints 15 members: 8 from districts, 4 from greater Minnesota, a chair

• Has not levied since 1969• Levy limit – 0.00806 % of taxable MV for O&M• Can issue general airport revenue bonds, general

obligation revenue bonds, certificates of indebtedness

11/10/2011

Page 39: Special Taxing Districts

House Research Department 39

Metropolitan Area Agency Levies(in millions)

11/10/2011

1995 1997 1999 2001 2003 2005 2007 2009 2011$0

$20

$40

$60

$80

$100

$120

$140

Nominal

Inflation-adjusted

Taxes Payable Year

Page 40: Special Taxing Districts

House Research Department 40

Metropolitan Agencies and RDCs:Regional Development Comm.

• Work with & on behalf of local governments to develop plans or implement programs to address economic, social, physical, and governmental concerns of each region

• Established by petition of local governments, Governor’s order. Governed by local government representatives, selected per bylaws

• Pay 2011 levy = $3,084,000• Number levying = 9 (of 9)• levy limit – greater of fixed amount in statute or 103% of

amount levied in prior year• Tax anticipation borrowing only debt allowed

11/10/2011

Page 41: Special Taxing Districts

House Research Department 41

Regional Development Commission Levies (in millions)

11/10/2011

1995 1997 1999 2001 2003 2005 2007 2009 2011$0.0

$0.5

$1.0

$1.5

$2.0

$2.5

$3.0

$3.5

Nominal

Inflation-adjusted

Taxes Payable Year

Page 42: Special Taxing Districts

House Research Department 42

Hennepin County Misc.

• Park District• Minneapolis Park museum• Minneapolis teachers retirement

11/10/2011

Page 43: Special Taxing Districts

House Research Department 43

Hennepin County Misc.Park Districts

• To acquire, develop and maintain large parks, wildlife sanctuaries, forest and other reservations, and provide public access to historic sites, lakes, rivers, etc.

• One or more counties meeting the population threshold can establish a park district

• Three Rivers Park District is the only one, with 2 members appointed by the Hennepin County board and 5 elected from districts

• Pay 2011 levy = $40,477,000• Levy limit – 0.03224%• May issue bonds up to 0.5% of “full and true value”

11/10/2011

Page 44: Special Taxing Districts

House Research Department 44

Hennepin County Misc.Minneapolis Park Museum

• To care for, maintain and improve a museum, land and collection - Minneapolis Institute of Arts

• Minneapolis Park Board is an elected body• Levy is county-wide• Pay 2011 levy = $11,979,000• Levy limit – 0.00846%• No bonding authority

11/10/2011

Page 45: Special Taxing Districts

House Research Department 45

Hennepin County Misc.Minneapolis Teachers Retirement

• Mandated city contribution to the Teachers Retirement Association, but the law explicitly classifies this as a special district tax rather than a city tax

• Pay 2011 levy = $2,253,000• No Levy limit• No bonding authority

11/10/2011

Page 46: Special Taxing Districts

House Research Department 46

Hennepin Co. Miscellaneous DistrictLevies (in millions)

11/10/2011

1995 1997 1999 2001 2003 2005 2007 2009 2011$0

$10

$20

$30

$40

$50

$60

Nominal

Inflation-adjusted

Taxes Payable Year


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