1 Minnesota s Capital Investment Process: What Cities Should Know Webinar for the League of MN Cities May 2, 2017
2 Capital Budget FAQ for Local Governments
3 How and When Do I Submit My Requests?
4 2018 Timeline Overview Year Timeframe Action June 16 Deadline for local gov t project submissions in CBS June - Sept July 17 MMB staff review requests and conduct site visits as needed Preliminary capital budget submission to legislature January 15 Final capital budget requests and Governor s recommended capital budget submitted to legislature
5 Capital Budget Process The Governor s recommended capital budgets are presented for consideration by the legislature in even-numbered years. MMB s role is to collect and present capital budget information in a standard format from state agencies and local governments in order to evaluate projects and facilitate decision-making. The capital budget process involves multiple audiences with different roles The Governor The Legislature MMB
6 Capital Budget System (CBS) All requests must be entered into the Capital Budget System (CBS) with adequate information to allow for meaningful consideration of the project by the Governor and Legislature. CBS is a web-based application, and all users must be authorized by MMB. CBS will open for project submissions on May 1, 2017.
7 Which State Agencies Will I Need to Work With?
8 Agencies, Programs, and Procedures Minnesota Management & Budget Review proposals for completeness and bondability Manage the process for the Governor and the Legislature collecting and disseminating information and providing instructions and forms Calculate the cost of proposed bonding packages Forecast debt service costs of future bonding bills based on a ten year average of bond authorizations Assist with implementation issues after enactment
9 Department of Administration Agencies, Programs, and Procedures Predesign must be reviewed by the Department of Administration before design begins Capital projects are expected to employ sustainable building guidelines and high performance building practices (M.S. 16B.325). Granting Agency If a local government project is enacted in a bonding bill, the appropriation must be made to a state agency for a grant to the local unit of government
10 What Do I Need to Submit & How Will Information Be Used?
11 What Information Will Be Published? Detailed project information submitted in CBS will be published in 3 reports: Projects Summary A listing of all requests from each entity on one form. Projects are displayed according to priority ranking. Funding requests are shown for 2018, 2020, and Project Narrative Includes a brief summary of each request, the amount, priority rank, detailed description and rationale, and other background information. Project Detail Includes all funding sources and project costs for each request (which must match), and lists applicable statutory requirements.
12 MMB s Evaluation of Capital Projects Is the project eligible for general obligation bond funding? Has all required information been entered in CBS, including statutory requirements? Do Funding Sources equal Project Costs (projects cannot be submitted if totals do not match)? What problem does the project address? Does the project serve a statewide or regionally-significant purpose? Can the project be completed in phases? Does the project have the required 50% nonstate match?
13 Evaluating Capital Projects (continued) Could the project be funded through an existing statutory grant program (ex: Local Road Improvement Program, Wastewater Infrastructure Funding Program, or Transportation Economic Development [TED] Program)? * Can the project be completed with nonstate funds? Will the project require additional state subsidies to operate? Does the project serve a public purpose, and will the project be owned and operated by a public entity? Is there a resolution of support from the jurisdiction s governing body (uploaded to CBS)? *Projects eligible for a grant through an existing state program should not be submitted as a capital budget request. Such projects should go through agency programs.
14 General Obligation Bonds: Can My Project Be Funded?
15 What Projects Are Eligible For State G.O. Bond Financing? Article XI, Section 5, of the Minnesota Constitution contains the authority for incurring public debt (G.O. bonds) Subdivision (a) authorizes debt to acquire and to better public lands and buildings and other public improvements of a capital nature, and to provide money to be appropriated or loaned to any agency or political subdivision of the state for such purposes. In other words The project must be for a public purpose The project must be publicly owned The purpose of the bonds must be clearly set forth in the law Project activities must constitute capital expenditures
16 Are There Restrictions on Spending GO Bond Proceeds?
17 Allowable Capital Expenditures Capital expenditures test: Long-lived: 10 years Fixed asset: land, building, capital equipment or other improvement to land Purchase of land, buildings, easements Predesign and design Construction (including environmental testing and site preparation) Major renovation, roof reconstruction and replacement, major window replacement (if add to value or life of building) Fixtures, furnishings and equipment, only if installed: Upon initial construction, or During major renovation to make the facility usable for the first time
18 Ineligible Capital Expenditures Examples include: Options to purchase land or buildings Fixtures, furnishings and equipment that don t fit into categories above General studies to evaluate the need for a capital project Educational, promotional or informational costs incurred for a project not yet sited Computer and financial modeling for a project not yet sited Master planning
19 Ineligible Capital Expenditures * (continued) Examples include: All relocation and moving costs Operating and maintenance costs Betterments to leaseholds with less than a 10-year term Software and data management systems Personal computers Marketing expenses *This is not an exhaustive list 1/11/2017
20 Restrictions on Use of GO Bond Financed Property Private use is any direct or indirect use by a nongovernmental person or entity Certain IRS safe harbors may apply Involve MMB at earliest opportunity Bond-financed facilities used for private business threatens the tax-exempt status of the state s bonds
21 Use Contracts Definition: a lease, management or other contract between the public owner of BFP and another party operating or using it Governed by M.S. 16A.695, Commissioner s Order and Use Contracts Checklist MMB approval required Must carry out a government program The term of the use agreement must be substantially less than the property s useful life ( 50% is rule of thumb) A portion of any revenue received goes to pay off state GO bonds, if more revenue is received than is needed to cover operating costs
22 Examples of Private Use * Rented skyboxes in sports facilities Concessions Naming rights, broadcast rights, advertising, sponsorships Leased space Office buildings Convention center/arenas Airport terminals Parking garages Academic institutions Stadiums Business incubators Cell phone towers, solar panels, electric charging stations *This is not an exhaustive list
23 What Additional Requirements Apply to Local Projects?
24 Grant Agreements Required when a state agency funds a grant to another public entity ( local projects ) Not required if appropriation is made to a state agency for its own capital needs MMB has prepared generic forms for state agency use Forms are slightly different depending on funding source: GO bond funds disbursed under an agency program Other GO bond-funded projects General fund (cash)
25 Statutory Authority & Program Operation Grantee must have independent statutory authority to operate the project (for example, via charter or statute) The bonding legislation alone does not normally provide authority to operate the project or program Grant recipients must demonstrate to granting agency that they have an ability and plan to fund the program intended for the facility If operated by a public entity: Entity must submit to granting agency a budget item or resolution supporting operation If operated by a private party: Granting agency must approve initial program implementation plan Annually, granting agency must review program evaluation report and budget
26 Full Funding Requirement All financing must be in place to complete the project before the grant will be made available (M.S. 16A.502) Clarify what the project is; e.g., if just predesign, funding for construction is not needed Capital Grants Manual lists acceptable documentation for different funding sources
27 What Happens When My Project Is Complete?
28 Cancellations (M.S. 16A.642) Grantees should plan to have a grant agreement executed within 4 years of the appropriation Commissioner of MMB issues cancellation report on January 1 of each oddnumbered year Lists all bond and general fund capital appropriations enacted > 4 years previously with unspent and unencumbered balances The 1/1/2023 report will show amounts from 2018 bonding bill and earlier Such balances are cancelled as of July 1 of the year of the report Cancelled balances go to repay state bonds.
29 What If the Bond Financed Property Is No Longer Needed?
30 Bond Financed Property (BFP) Definition: property acquired or bettered wholly or partly with G.O. bond proceeds BFP stays BFP until 125% of useful life elapses or it is sold pursuant to 16A.695 & Commissioner s Order A declaration must be recorded and provided to MMB to evidence restrictions on use and sale Special rules apply to sales
31 Sale of Bond Financed Property Sale must comply with statutory authority, M.S. 16A.695 and Commissioner s Order MMB approval of sale required No longer usable or needed for the government program Sale must be for fair market value (appraisal or public bidding) First dollar goes to State to repay the bond fund See Sale of Bond Financed Property Checklist for all requirements
32 Where Can I Find a List of Statutory Requirements?
33 Statutory Requirements for State-Funded Projects M.S. 16B.323: Solar Energy in State Buildings. Up to 5% of appropriation to be used on Solar energy system- any new building that receiving bond funds, includes additions and major interior configuration or energy system. M.S. 16B.325: Apply Sustainable Guidelines (B3-MSBG) for new buildings & major renovations ( M.S. 216B.241 Sustainable Building SB 2030 requirements Contact/support: M.S. 16B.326: Heating and Cooling Systems. Written plan w/predesign to consider providing Geothermal & Solar Energy Heating & Cooling Systems on new or replacement HVAC systems M.S. 16B.335, subd. 1: Notification to Legislature. Notification to select House & Senate members prior to final plans. Legislative response is needed prior to preparing final construction documents.
34 Statutory Requirements for State-Funded Projects (continued) M.S. 16B.335, subd. 3: Predesign submittal. Predesign packages must be submitted to the Dept. of Administration for approval. Statute exempts certain projects from this requirement. M.S. 16B.335, subd. 4: Energy Conservation Standards. Projects must comply with standards in M.S. 216C.19 to 216C.20 and M.S. 16B.335, subd. 3c: MINNCORR. Consider the use of MINNCOR products in specifications. M.S : Prevailing Wage. Contractor must pay prevailing wages and hours of labor.
35 Statutory Requirements for State-Funded Projects (continued) M.S. 16A.695: State Bond Financed Property Requirements. Various requirements related to leases and management contracts, sale of property, program funding, match requirements, ground leases, and grant agreements. M.S. 16C.285: Responsible Contractor. Minimum requirements for contractors in order to receive contracts for projects. M.S. 16A.502: Nonstate Commitments. If an appropriation is less than the total project cost, a sufficient contribution/match from nonstate sources is required. M.S. 16A.86: State Share of Local Projects. State appropriation cannot exceed half the total project cost. Certain types of jurisdictions and projects are exempt. Capital investment bills: Requirement to use U.S.-made steel (only if included in enacted legislation)
36 Where Can I Find a List of Bonding Resources?
37 Capital Budget Preparation Instructions and templates Capital Budget System Authorization Statewide Administrative Portal (system log in) System manual
38 Bonding Bill Implementation Instructions, Policies, and Checklists Capital grants manual for local governments Capital grant agreements, instructions, and checklists Financial policies and procedures for capital projects Legal Information MN Constitution, Article XI, Section 5 (bonding authority for public works) M.S. 16A.695 (GO bonding law) Fourth Amended Commissioner s Order (GO bonding implementation) Bond counsel opinions
39 Questions? Process, Requests, Capital Budget System Liz Connor Capital Budget Coordinator Grant Agreements, Bond Sales, Legal Information Jennifer Hassemer Assistant Commissioner for Debt Management
40 The Bonding Quest
41 How to deal with an old school complex that was to be vacated by the school district 1916 School Building 1936 Auditorium (The New Deal) 1954 Classroom Building Prominently located on Main Street, on edge of downtown Had been in public use since 1865
42 Assembled a citizen task force and hired an architect to facilitate discussions to develop thoughts relative to re-use of the property. Met with key business and civic groups to test the conclusions of the task force and further develop thoughts. Concluded that: The City s history of valuing theatre, music, and fine arts should be basis of future use, The property should stay a public asset The 900 seat auditorium should host regional events An art center, in that location, could be a strong economic driver This project is larger than what this community can afford and will benefit a broad geographic area.
43 A small steering committee was developed to flesh out the details needed to re-purpose the property. Architects were retained to assist with visioning and cost estimating. Joint meetings of the City Council, School Board, and EDA were held, which resulted in: School District granting the property The EDA taking ownership of the property The City committing to maintaining the property A common bond between these governmental bodies A 501c3 non-profit corporation was developed to: Seek grants and donations, Produce events, and Begin operations.
44 MMB Application Legislation Develop improvement plans, with drawings. Develop a general operating plan, which demonstrates the need for the project and the ability to sustain the project. Develop a narrative, along with hand-outs, that clearly demonstrates how the project will benefit the region/state: One Page Summary Drawings Budgets Job Creation Report Economic Impact Analysis
45 Meet personally with local legislators to secure their support and commitment to author legislation. Retain a lobbyist to ensure understanding of how the process works, and gain contacts. Meet personally with every member of both the House & Senate Cap. Inv. Committee. Meet personally with the staff of the Committee Chair and with Committee Administrator. Meet personally with Governor s staff.
46 Sell your project based on its own merits do not undermine any other projects. Be persistent.consistent ever-present. non-partisan accurate Don t worry about what you cannot control.
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