2016 State of the State

Governor Andrew M. Cuomo

Contents
1.

Economic Agenda ................................................................ 15

Part One: Controlling Spending, Reducing Taxes, and

Improving Efficiency ........................................................................ 17

Proposal: Keep State Spending Under Two Percent ...... 20

Proposal: $300 Million Small Business Tax Cut ............... 20

Proposal: Launch a $20 Million Municipal Consolidation

and Efficiency Competition ....................................................... 22

Part Two: Built to Lead: Infrastructure Program ................. 24

Proposal: Invest a Record $26.1 Billion in the MTA ....... 27

Proposal: Enhance MTA User Experience with New

Technology ...................................................................................... 30

Proposal: Renovate and Upgrade 30 MTA Subway

Stations.............................................................................................. 32

Proposal: Modernize JFK and LaGuardia Airports .......... 33

Proposal: Build a New Empire Station Complex to

Replace Penn Station ................................................................... 33

Proposal: Expand and Enhance the Javits Center ............ 36

Proposal: Jumpstart the Gateway Tunnel Project ........... 38

Proposal: Add Track and Passenger Capacity to the Long

Island Rail Road ............................................................................. 39

Proposal: Explore Feasibility of New Transportation

Access Points to Long Island .................................................... 40

Proposal: $1 Million Deep Water Port Study at Old

Shoreham Power Plant ............................................................... 41

Proposal: $50 Million Ronkonkoma Hub Expansion...... 41

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Proposal: $6 Million MacArthur Airport Modernization

and Revitalization ......................................................................... 42

Proposal: Promote Economic Development at Republic

Airport ............................................................................................... 43

Proposal: Launch $200 Million Competition to Revitalize

Upstate Airports ............................................................................ 43

Proposal: $22 Billion Capital Plan for New Yorks Roads

and Bridges ...................................................................................... 44

Proposal: Enact the Thruway Toll Reduction Plan ......... 45

Proposal: Launch the $1 Billion New BRIDGE NY

Program to Fix Bridges ............................................................... 47

Proposal: Launch the New $1 Billion PAVE NY Program

to Build and Fix Roads ................................................................ 48

Proposal: Launch a New $500 Million Infrastructure

Hardening Program ..................................................................... 49
Proposal: Create the Design and Construction Office .... 50

Part Three: Upstate Economic Growth ..................................... 51

Proposal: Invest $750 Million through Round Six of the

Regional Economic Development Councils ........................ 56

Proposal: $200 Million for URI Runner Ups to Fund Top

Projects.............................................................................................. 57

Proposal: Invest $100 Million in Downtown

Revitalization Program............................................................... 58

Proposal: Bring Mixed Martial Arts to New York ............ 59

Part Four: Tourism: I LOVE NY .................................................... 60

Proposal: Expand Tourism Investment to $50 Million . 62

Proposal: Adirondack and New Challenges ....................... 62

Proposal: Invest $5 Million to Promote Outdoor

Recreation in the Catskills......................................................... 63
2

Part Five: Producing New Yorks Best....................................... 64

Proposal: Expand the Taste NY Program and Open Four

New Stores ....................................................................................... 68

Proposal: Modernize and Simplify the Alcoholic

Beverage Control Law ................................................................. 70

Proposal: Update the Alcoholic Beverage Control Law to

Grow E-Commerce........................................................................ 71

Proposal: Cut Taxes for Craft Beverage Producers ......... 71

Part Six: Building A Clean Energy Economy ........................... 72

Proposal: Adopt an Aggressive Clean Energy Standard 75

Proposal: Adopt the Clean Energy Fund.............................. 76

Proposal: Increase Renewable Energy Consumption at

State Owned Facilities and on SUNY Campuses ............... 77

Proposal: Make 500,000 Homes and 20,000 Businesses

More Energy Efficient By 2020 ............................................... 79

Proposal: Install Solar on 150,000 New Homes and

Businesses by 2020 ...................................................................... 80

Proposal: Build 300 Additional Wind Turbines by 2020

and Create a Master Plan for Offshore Wind ..................... 80

Proposal: Invest $8 Million to Build Out Community

Microgrids ........................................................................................ 82

Proposal: Launch the $3 Million Energy to Lead

Competition for Colleges and Universities ......................... 83

Proposal: Invest $75 Million in Affordable Housing and

Retrofit 100,000 Units by 2025 .............................................. 83

2.

Proposal: Create Clean Energy Workforce Opportunity

Program and Train 10,000 Workers by 2020 ................... 85
Education: A Ladder to Opportunity ............................ 87

Part One: Higher Education ........................................................... 89

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Proposal: Extend the NYSUNY 2020 and NYCUNY 2020

Program ............................................................................................ 93

Proposal: Expand SUNY and CUNY Performance

Initiatives.......................................................................................... 97

Proposal: Expand Commercialization Opportunities

Launch Bio-Science Venture Capital Competition........... 98

Proposal: BioElectronic Facility at Nassau Hub ............... 99

Proposal: Create the New York State Innovation

Database ........................................................................................... 99

Proposal: Expanding Educational and Economic

Opportunity to All by Expanding Access to Early College
and CTE Programs ..................................................................... 100

Proposal: Expand Community College Community

Schools............................................................................................ 105

Proposal: Enact the DREAM Act........................................... 105

Part Two: Pre-Kindergarten-12 Education .......................... 107

Proposal: Increase School Aid to Highest Level in History

........................................................................................................... 109
Proposal: Eliminate the Gap Elimination Adjustment 110

Proposal: Establish the $100 Million Community Schools

Transformation Fund to Transform Failing Schools ... 111
Proposal: $200 Supplies Credit for Teachers ................. 113

Proposal: Establish an Education Tax Credit ................. 113

Proposal: Support School Choice......................................... 114

Proposal: Examine Enrollment and Retention Policies in

Charter Schools ........................................................................... 114
Proposal: Restoring the Trust in Education: The
Common Core Task Force....................................................... 115
Proposal: Expand Pre-Kindergarten for Three Year Olds
........................................................................................................... 117
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Proposal: Expand Quality Monitoring and Improvement

in Pre-Kindergarten .................................................................. 119
3.

Proposal: Extend Mayoral Control in New York City .. 120

Proposal: Make Schools Safer ............................................... 121
Preserving our Environment and Open Space ...... 125

Proposal: Increase the Environmental Protection Fund

to $300 Million ............................................................................ 128

Proposal: Make New York Coal Free By 2020................ 130

Proposal: Advance $7 Million for Environmental Justice
Programming ............................................................................... 131
Proposal: Increase Water Infrastructure Investment Act
of 2015 to $300 Million ........................................................... 133
Proposal: Accelerate $500 Million Nitrogen Pollution
Prevention Program on Long Island .................................. 134

Proposal: Invest $9 Million to Build Advanced Zero

Emission Vehicle Charging Stations ................................... 136
Proposal: Reduce Organic Waste to Lower Methane
Emissions ...................................................................................... 137

Proposal: Invest $125 Million to Rebuild State Parks 138

4.

Proposal: Launch Connect Kids Parks Access Program

and Provide Free Parks Entry for 220,000 Fourth
Graders ........................................................................................... 140
Public Safety ...................................................................... 143

Proposal: Establish Permanent Statewide Law

Enforcement Presence to Combat Terrorism ................ 146
Proposal: Consolidate the Office of Counter Terrorism
with the State Police ................................................................. 147
Proposal: Provide Enhanced Training and Equipment to
State Troopers ............................................................................. 148

Proposal: Close the Terror Gap ............................................ 148

5

Proposal: Protect Critical Infrastructure through

Targeted Security Assessments ........................................... 149

Proposal: Establish Best-Practice Industry Standards to

Prevent Against Cyber Attacks ............................................. 150

5.

Proposal: Create the Cybersecurity Research

Scholarship to Train the Next Generation of Security
Analysts .......................................................................................... 152

Social Justice ...................................................................... 155

Part One: Human Services and Poverty................................. 156

Proposal: Expand MWBE Goals to State-Funded
Contracts........................................................................................ 162

Proposal: Create the $25 Million Empire State Poverty

Reduction Initiative................................................................... 163
Proposal: Improve Transportation Access to Work .... 166

Proposal: Launch Empire Corps: A New Youth Corps to

Help New Yorkers in Need ..................................................... 167
Proposal: Implement Recommendations of the AntiHunger Task Force .................................................................... 169

Proposal: Commit $22.5 Million to Improve Access to

Emergency Food ......................................................................... 171

Proposal: Establish New York State Council on Hunger

and Food Policy........................................................................... 172
Proposal: Extend SNAP Benefits to 750,000 Households
........................................................................................................... 173

Proposal: Leverage Federal Nutrition Programs &

Eliminate Barriers to Benefits .............................................. 174
Proposal: Redesign Electronic Benefits Card ................. 175
Proposal: Support Young Adults Transitioning from
Foster Care.................................................................................... 176

Proposal: Strengthen Penalties for Child Abuse ........... 178

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Part Two: Right Priorities ........................................................... 179

Proposal: Expand Community Schools ............................. 181
Proposal: Urban Youth Jobs Program and Workforce
Training.......................................................................................... 181

Proposal: Expand Alternatives to Incarceration to

Reduce Incarceration ............................................................... 182

Proposal: Reduce Criminal Behavior through Education

........................................................................................................... 183

Proposal: Provide Transitional Support upon Release

........................................................................................................... 185

Proposal: Raise the Age of Criminal Responsibility..... 187

Proposal: Enhance the Rights of Pardoned Individuals

........................................................................................................... 188

Part Three: Fairness for All......................................................... 188

Proposal: Institute Bail Reform............................................ 190
Proposal: Require Stronger Pretrial Procedures .......... 191

Proposal: Increase Opportunities for Families to Stay

Close During Incarceration .................................................... 192

Proposal: Work Release and Parole Board Reforms ... 193

Proposal: Reward Success after Release .......................... 194

Proposal: Deploy New Technologies to Improve Safety in

Prisons ............................................................................................ 195
6.

Proposal: Establish the Office of an Independent Special

Counsel ........................................................................................... 196
Economic Justice .............................................................. 199

Proposal: Increase the Minimum Wage to $15 per Hour

for All New Yorkers ................................................................... 200

Proposal: $20 Billion Housing and Homelessness Plan

........................................................................................................... 204
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7.

Proposal: Enact Paid Family Leave for New York

Workers ......................................................................................... 210
Proposal: Ensure Financial Security for Retirees ......... 212
Close the Skills Gap and Train Youth ........................ 215

Proposal: Invest $5 Million to Launch Apprentice SUNY

........................................................................................................... 217

Proposal: Create the $3 Million Middle-Skill Jobs Gap

Training Fund .............................................................................. 219
Proposal: Modernize the New York Apprenticeship and
Training Council ......................................................................... 221

Proposal: Deploy the Unemployment Strikeforce to

Western New York .................................................................... 222

Proposal: Transform New York States One-Stop Career

Centers............................................................................................ 224

Proposal: $50 Million Urban Youth Jobs Program ....... 226

8.

Proposal: Create the First State Pre-Apprenticeship

Program ......................................................................................... 227
Protecting New Yorks Workers ................................. 229

Proposal: Protect the Rights of World Trade Center

Rescue and Recovery Volunteers ........................................ 230
Proposal: Make the Exploited Workers Task Force
Permanent .................................................................................... 232

9.

Proposal: Protect Immigrant Crime Victims through

Increased Access to U-Visas................................................... 233
Keeping New Yorkers Healthy .................................... 237

Proposal: New York State Certified High Quality Foods

........................................................................................................... 246

Proposal: Launch Statewide Effort to Increase

Awareness and Screening for Breast and Prostate
Cancer ............................................................................................. 249
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Proposal: Launch a $15 Million Public-Private Outreach

and Public Education Campaign for Cancer .................... 251

Proposal: Increase Access to Breast Cancer Screening

........................................................................................................... 252

Proposal: Dedicate $5 Million in Venture Capital

Funding for Cancer-Related Research and Technology
........................................................................................................... 255

Proposal: Extend the Upper Age of the Current HIV

Testing Guidelines Beyond 64 .............................................. 257
Proposal: Broaden HIV Testing and Treatment Consent
Laws for Minors .......................................................................... 257
Proposal: Link Individuals to HIV Treatment and
Improve Viral Suppression .................................................... 259
Proposal: Remove Limitations on the States Expanded
Syringe Access Program .......................................................... 260

Proposal: Increase Funding and Expand Services for

Childrens Mental Health ........................................................ 261
Proposal: Implement the Developmental Disabilities
Transformation Panel Recommendations ....................... 263

Proposal: Combat Opioid Overdose ................................... 265

Proposal: Prevent Opioid Addiction Relapse ................. 267

Proposal: Combat Dangerous Synthetic Drugs .......... 268

Proposal: Control Rapidly Rising Prescription Drug

Costs ................................................................................................ 269
Proposal: Strengthen the Home Health Care Workforce
........................................................................................................... 271

Proposal: Ensure the Safety of Child Products .............. 272

Proposal: Expand Farm to School Partnerships to Help

Farmers and Students .............................................................. 272

10. Ethics Reform .................................................................... 274

9

Proposal: Close the LLC Loophole and Increase

Campaign Disclosure ................................................................ 277

Proposal: Limit Outside Income for Legislators............ 278

Proposal: Adopt a Voluntary Public Campaign Financing
System ............................................................................................ 279

Proposal: Enact Other Campaign Finance Reforms ..... 279

Proposal: Promote Transparency through New Reforms
to FOIL ............................................................................................ 280

Proposal: Require Legislators Convicted of Corruption to

Forfeit Pensions .......................................................................... 281

Proposal: Increase JCOPE Transparency and

Enforcement and Strengthen Ethical Requirements for
Lobbyists ....................................................................................... 281
Proposal: Convene a Constitutional Commission ......... 282

Proposal: Early Voting in 139 Locations .......................... 283

Proposal: Automatic Voter Registration .......................... 285

Proposal: Embrace Good Government and Transparency

........................................................................................................... 287
Proposal: Reform Lobbying Laws ....................................... 287

10

GOVERNOR ANDREW M. CUOMO

NEW YORK: BUILT TO LEAD
New York State has been transformed from a

state of despair to a state of opportunity. Now, working

together, New York is leading the nation to a smarter

tomorrow, guided by a bold vision and galvanized by

where weve been.
In

2010,

852,000

New

Yorkers

were

unemployed, the most since the Great Depression. Six

years later, we have 7.87 million private sector jobs, the
most in our states history. Unemployment has fallen

from a distressing 8.9 percent in 2010 to 4.8 percent

today.

New York State was in trouble. A dysfunctional

state government spent more than it earned, driving

taxes to unsustainable levels for citizens and businesses.

Jobs left by the thousandswith upstate bearing the
brunt of the lossthus creating a vicious cycle of decline
that kept young people away and the states credit
ratings down.

11

In six years, we reversed the cycle of decline in

upstate and turned New York around. We right-sided a

$10 billion budget deficit and recovered $7.2 billion in

financial settlements. We passed five balanced budgets
in a row and held spending well below 2 percent for the

first time in modern political history. Because we spend

less, we tax lessat the lowest rates in a century. Today,

everyone in New York pays a lower income tax rate than

they did six years ago. Jobs are at record levels and we
have the best credit ratings in decades.

For upstate, regional economic development

councils are strategically reviving communities from the

bottom

up.

We

have

embraced

entrepreneurial

government by building tax-free zones to combine the

ambition of the private sector with the capacity of our

public research institutions, creating jobs and driving

investment across the state. The economic renaissance in

Western New York, from downtown Buffalo to its
industrial district, is dramatic and it is fundamental.

We have proven what is possible in a short

amount of time.

We constructed 30,000 units of affordable

housing, redesigned LaGuardia Airport, and made the

new

Tappan

Zee

Bridge
12

the

largest

highway

infrastructure project in North America. We achieved

record funding for education, created statewide
universal pre-k, and helped a full 2 million New Yorkers

enroll in health insurance. We are investing $16 billion in

environmental and clean energy programs, committing

to a goal of 50 percent renewable electricity by 2030, and
funding the largest MTA capital program in history.

New York State has regained its footingnow we

must regain our ambition.

The Statue of Liberty stands in our harbor as an

emblem of opportunity, welcoming the masses with

open arms. Yet, too many New Yorkers live within a
system that fails to provide reasonable pay, adequate

housing or equal justice under the law. It must be fixed.

We must provide the best education to our children. The

threat of terrorism is omnipresent to New Yorkers and

demands that we take action to protect our interests.
And we need to drive smart economic growth by
investing in our states most vital infrastructure.

These problems are not unique to New York. But

when the nation faces a challenge, New York shows the

way forward. Just as we did with marriage equality,

fingerprinting for food stamps, sexual violence on college
campuses and common-sense gun control, we will work
13

together with a common purpose that is to make New

York a better place. That is what we will do to lead the
nation into a smarter tomorrow.

14

1.

ECONOMIC AGENDA

When Governor Cuomo took office in 2011 the

nation was in the midst of a recession, the state economy

lagged behind the rest of the nation, and uncontrolled

government spending was crippling state and local

budgets. In five short years, New York has turned itself

around.

Unemployment is down, businesses are growing

and staying in New York, and upstate has seen historic

revitalization. The Governor and Legislature have put the

state on a course of fiscal stability with on-time, honestly

balanced budgets. State spending growth has been held
to below two percent, the lowest rate of spending growth
over a four-year period in more than 50 years.

Sustaining New Yorks infrastructure will be a key

pillar of economic development during Governor

Cuomos second term. New York has a rich history of

great builders and legacies. However, much of New

Yorks essential infrastructureits roads and bridges,

mass transit systems, ports and airports, electrical grid

and water and sewer systemsrequire renovation,

expansion, and repair. To remain competitive, promote

15

economic development, and create jobs, New York must

continue to rebuild and modernize critical infrastructure
across the state.

Since taking office, Governor Cuomo has invested

over $54 billion in infrastructure projects across New

York and coordinated capital planning across 45

agencies and authorities through the creation of the New

York Works Task Force. Along with making ongoing

financial commitments to infrastructure, Governor

Cuomo has embraced innovative building and financing

mechanisms to upgrade New Yorks 20th century
infrastructure to meet the demands of the 21st century

economy. New York State will expand on its significant

accomplishments and undertake a number of major new

infrastructure projects that will transform the state for
generations to come.

The state will also continue to build smart when

it comes to job creation. Governor Cuomo will further

embrace the successful paradigm of entrepreneurial
government that has helped the economy grow to
7.87 million private sector jobs, the most in our states

history. Building off successes in the dairy, yogurt, and

craft beverage industries, Governor Cuomo will partner
with the private sector to modernize New Yorks
16

economy and cultivate growth in the technology, energy,

and agriculture sectors.

The Governor will also continue to support a

regional approach to economic development that

leverages the states creative, intellectual, and natural

resources. Through targeted programs and investments,

the state will maximize its competitive advantages to
foster

industry

development.

growth

and

vibrant

downtown

These new strategic and coordinated

efforts will ensure that growth and prosperity extend to

all corners of the state.

PART ONE: CONTROLLING SPENDING, REDUCING

TAXES, AND IMPROVING EFFICIENCY
Since 2011, the Governor and Legislature have

steered the state along a course of fiscal responsibility

with five on-time, balanced budgets that have held state

spending growth under two percent for the longest

period of time in more than 50 years. This joint fiscal

stewardship has reversed decades of overspending

whereby the annual State Budget grew faster than

income 60 percent of the time. With the adoption of the

2 percent spending benchmark, the unsustainable trend

has been reversed. Since 2011, state spending has grown
17

more slowly than income each year and will again with
the FY 2017 Executive Budget.

Governor Cuomos fiscal reforms have reduced

volatility related to the budget-making process. Rather

than large spending increases in good economic times

that cannot be sustained when the economy turns, the
past five budgets have been sustainable and affordable in
the long term.

The combination of budget reforms and spending

restraint has led to measurable improvements in the

states financial position. General Fund deficits totaling

tens of billions of dollars have been eliminated and
turned into operating surpluses used to bolster reserves

to the highest levels on record. 1 Total state debt has

declined in each of the last three fiscal years, and will
decline again in the current year.

Never before in

modern times has New Yorks debt declined for four

consecutive years. 2 state debt measured as a percentage

of personal income has decreased from 6 percent in FY

2010 to 4.6 percentthe most favorable debt to income

ratio since the 1960s. 3 Our debt ratio is expected to

continue to improve, even as the state makes targeted

capital

investments

for

housing,

health

transportation, and economic development.

18

care,

In 2014, all three major credit rating agencies

Standard and Poors, Fitch, and Moodysrecognized

New Yorks outstanding financial performance by

upgrading the state to its highest credit rating since

1972. The state now enjoys the second highest

investment-grade credit rating possible from all three

raters on its general obligation bonds (S&P rates the

State's Personal Income Tax Bonds and Sales Tax Bonds
at AAA, the highest rating possible). 4

Governor Cuomo has championed significant tax

relief in the last five years, including the enactment of a

two percent property tax cap; the lowest middle-class
income

Today, New York has the lowest

middle-class income tax rate in over
60 years.

tax

rate in over
60 years; the

elimination

of the MTA
payroll

tax

for more than 700,000 small businesses and the selfemployed;

tax

cuts

for

small

businesses

and

manufacturers; reforms to unemployment insurance and

workers compensation insurance; the launch of START-

UP NY tax-free zones; and the lowest corporate income

tax rate since 1968. 5 Last year, the Governor worked
19

with legislative leaders to extend the Property Tax Cap

for an additional four years. In 2015 alone, the Property
Tax Cap saved taxpayers $4.5 billion. The Circuit
Breaker tax relief was also extended for four years,

helping qualifying New York City homeowners and

renters with a refundable tax credit against the personal

income tax when their property taxes or rent exceeds a
certain percentage of their income.

Proposal: Keep State Spending Under Two Percent

The

Executive

Budget

will

continue

the

disciplined approach to fiscal matters that has defined

the Governors first five budgets. For a sixth time, the

Budget again limits the annual growth in State Operating
Funds spending to 1.7 percent.

Proposal: $300 Million Small Business Tax Cut

Small businesses are the backbone of the states

economy, accounting for 43 percent 6 of all private sector

jobs in New York. During the last five years, Governor
Cuomo

has

worked

tirelessly

to

bolster

the

competitiveness of small businesses by lowering their

tax burden. Since taking office in 2011, he has advanced

a series of cuts that will save small businesses across the
state $3.8 billion by 2021. 7

20

To continue the growth of the small business

sector and help further the expansion of New Yorks

economy, taxes are being lowered both for small

businesses who pay via the corporate tax and for those

who pay through personal income taxes. Approximately

1.1 million small businesses statewide will benefit from

the Governors 2016 proposal.

For small businesses that file under the corporate

tax code, the Governor proposes to reduce the net

income tax rate from the current 6.5 percent to 4 percent

effective January 1, 2017. For the purpose of this tax cut,

the definition of small business is a business with less
than 100 employees, with net income below $390,000.

Small businesses have traditionally paid a lower rate

than large corporate taxpayers, but tax cuts passed in

2015 lowered the corporate tax rate to the level

currently being paid by small businesses. Governor

Cuomo proposes to preserve the small business tax

advantage by lowering their rate even further. To avoid
a cliff the lower tax rates would be available to small

businesses having below $290,000 in net income, and

the rate is phased up to the standard rate applicable to
businesses with net income of $390,000 or more.
21

For small businesses owners who pay taxes via

the personal income tax, the Governor proposes new and

expanded tax cuts. Currently, sole proprietor and farm

small businesses can subtract five percent of their

income from tax calculations. The Governor proposes to

increase the exclusion to 15 percent of income. Further,

to create tax parity between small business types, the

Executive Budget also extends this tax cut to other types

of small businesses. Members of partnerships, Scorporations, and LLCs will be able to exclude 15 percent

of business income as long as some of their business

income is derived from a business entity with less than

$1.5 million in New York gross receipts, and their total

business income from these sources is below $250,000.
Proposal: Launch a $20 Million Municipal
Consolidation and Efficiency Competition

In 2010, before Governor Cuomo took office,

homeowners in 33 of New Yorks 62 counties had a

property tax burden that surpassed the national median.

From 1980 to 2010, New Yorks local property taxes

grew by an unsustainable average rate of 5.7 percent per

year. 8

To reduce homeowners property tax burden, the

Governor enacted a series of property tax relief

22

programs in 2011, 2014 and 2015. In 2011 the Governor

enacted the Property Tax Cap that requires local

governments to limit the annual growth in property

taxes to no more than two percent. Since the enactment

of the cap, the typical property owner has saved more

than $800, and by 2017 that number will grow to $2,100.

In 2014, the Governor enacted the Property Tax Freeze

Credit, a tax relief program that reimburses qualifying

New York State homeowners for increases in local

property taxes on their primary residences. This tax

freeze credit will save property taxpayers more than $1.3

billion over three years. In the first year of the program,

97% of school districts in New York State complied with

the property tax cap and more than 2.3 million

homeowners were reimbursed for $220 million in direct

tax relief. The Governor provided further relief in 2015

by enacting the Property Tax Relief Credit, which

progressively targets an additional $1.3 billion in

property tax relief for New York homeowners over the
next four years. 9

To cut costs and permanently lower property

taxes municipalities must find opportunities for shared

services between and among different units of

government. To incentivize local governments to work
23

together to share services, cut costs, and lower property

taxes the Governor proposes the creation of a new $20

million

Municipal

Competition.

The

Consolidation
Competition

and

will

Efficiency
challenge

municipalities to develop innovative consolidation plans

that yield significant property tax reductions and the
proposal that can demonstrate the greatest dollar value

of permanent reductions in property taxes for taxpayers

will receive a $20 million grant. The Competition seeks

to stimulate local governments to undertake serious,

innovative consolidation efforts that can serve as a
model for other local government units across New York
State.

PART TWO: BUILT TO LEAD: INFRASTRUCTURE

PROGRAM
From the Erie Canalthe nations first mega

projectto the New NY Bridgeone of the nations

largest ongoing construction projectsNew York has a

storied history of transformative infrastructure projects.

To remain competitive, promote economic development,

and create jobs, New York must continue to rebuild and

modernize its roads, bridges, broadband networks,
24

public buildings, and other critical infrastructure across

the state.

Since taking office, Governor Cuomo has invested

over $54 billion in infrastructure projects across New

York and reinvented the states approach to economic

development by coordinating capital planning across 45

Since taking office, Governor Cuomo has invested over

$54 billion in infrastructure projects across New York
and coordinated capital planning across 45 agencies
and authorities through the creation of the
New York Works Task Force.

agencies and authorities through the creation of the New

York Works Task Force. Since 2012, the New York Works

program has driven hundreds of infrastructure projects

to completion, including the resurfacing of over 2,000

miles of roadway, rehabilitation of over 100 bridges,

improvements at 133 State Parks and recreational sites,
and repairs at more than 140 dams and flood control
structures.

In his first year in office, the Governor

spearheaded the effort to authorize the use of the

design-build procurement method at five state
25

agencies, which encourages innovation and creativity

from the private sector in the engineering and

construction of major infrastructure projects. This

legislation, which was renewed in 2015, has been
utilized by state agencies and authorities to accelerate

the completion dates for dozens of stalled projects and

has saved taxpayers billions of dollars. The design-build

approach also helped the Governor to move the New NY

Bridge project from dysfunction to construction in just
14 months. The twin spans of the bridge between
Rockland and Westchester counties are already rising
out of the Hudson River and are on time and on budget,
with the first span scheduled to open next year.

Since 2011, Governor Cuomo has awarded over

$70 million for broadband projects across the state,

reaching approximately 160,000 households, 8,000
businesses, and 400 anchor institutions across more
than 6,000 square miles of New York. In 2015, the

Governor made the nations largest and most ambitious

state investment in broadband with the commitment of
$500 million for the New NY Broadband Program to

deliver high-speed broadband to New Yorkers by

December 31, 2018. The program launched in January

2016 and will achieve its goals through public-private
26

partnerships, which require a private sector coinvestment targeted to match the states commitment
across the program.

Governor Cuomo will continue to implement his

long-term vision for bold, innovative infrastructure

investment in 2016 with a record $26 billion

commitment to the MTA Capital Program; a record $22

billion investment in roads and bridges and other

transportation infrastructure, expansion of the Long

Island Railroad; rebirth of Penn Station, the worlds
busiest

multimodal

transportation

facility;

redevelopment of the Javits Center, the nations busiest

convention center; and a $200 million Upstate Airport

Economic Development and Revitalization Competition

that will complement the ongoing transformation of JFK

and LaGuardia Airports.

Taken together, these historic capital investments

will create hundreds of thousands of new jobs and

provide the framework to support New Yorks growing

and dynamic economy.

Proposal: Invest a Record $26.1 Billion in the MTA

The

Metropolitan

Transportation

Authority

(MTA) is the largest transportation network in North

27

America with 2,069 miles of track connecting 736

stationsmore stations than any other rapid transit

system in the world. Every day, MTA subways, buses,

and commuter rail lines move 8.7 million people to work,

school, healthcare, and cultural attractions. 10 The MTA is

a nearly trillion-dollar asset 11 that serves as the lifeblood

of New York City and enables the regions $1.5 trillion

economy to function and grow. 12 With another 1.6

million people expected to live in the MTA region by

2040, the state must do more than simply maintain the

current system. 13

The Governor proposes the states largest

contribution in history to the MTA Capital Program. The

proposed program totals $26.1 billion and outlines five

years worth of vital investments to renew, enhance, and

expand the MTA network. This investment will make the

system smarter and more resilient. The program

supports the replacement of over 3,100 buses and 1,400

subway cars; invests $2.8 billion in subway station

improvements; implements a new fare payment system

and new technology and communications systems;

completes installation of Positive Train Control on

Metro-North Railroad (MNR) and Long Island Rail Road

(LIRR); brings countdown clocks to more stations than

28

ever before; begins work on extending the Second

Avenue Subway to East Harlem; builds a new LIRR

station in Elmhurst, Queens; and constructs four new

Metro-North stations in underserved areas of the Bronx.

This historic spending program will also benefit

New York transit-related manufacturing firms that make

rail cars, buses, and needed electronic components. A

recent study found that this fully-funded capital program

will create more than 400,000 jobs across the state and
generate nearly $52 billion in economic activity. 14

The MTA has already cut more than $1.3 billion in

costs from its annual spending, and those recurring

savings are projected to increase to $1.8 billion a year by

the final year of the plan in 2019. To build on this

progress, the Governor will direct the MTA to spend and

operate smarter through innovative methods such as

design-build, negotiated procurement processes and

public-private partnerships to operate more efficiently,

spread risk more broadly, and take advantage of

innovative techniques. The MTA will also transform how
it works with contractors on projects to bring down
costs.

29

Proposal: Enhance MTA User Experience with New

Technology
To enhance the transit system and expand

services to meet customer demand, the MTA Capital

Program will invest billions in new technology projects
that make it easier to purchase tickets and access the
system, deliver Wi-Fi and cellphone service, enhance the
customer experience, make operations safer, and make
the system greener.

The MTA will give LIRR and MNR customers the

ability to purchase tickets on their mobile devices in the

next six months. The MTA will also accelerate the process

of bringing mobile payment methods to subways and

buses, allowing riders to pay their fares by waving a

cellphone a bankcard or another payment device.

Subways and buses will start using contactless payment

methods in 2018. To enhance communications, the MTA

will install Wi-Fi service in all 278 underground subway

stations by the end of 2016 and cellphone service in
every station in early 2017. To provide customers the

ability to charge their smartphone, the MTA will install

USB charging ports on 200 subway cars in 2016 and 400

in 2017, while all new buses delivered later this year will
have Wi-Fi hotspots.

30

The MTA will also install countdown clocks this

year on the 7 line as well as the lettered subway lines,

and accelerate delivering real-time arrival data for all

469 subway stations, which will be available on the

MTAs SubwayTime app. The MTA will also more than

double the number of On The Go Travel Station kiosks

that feature digital information screens that display

information about stops and service from 169 kiosks in

31 subway stations today to 359 kiosks in 20 additional

stations by the end of 2016. The MTA will also install

similar technology on 200 buses beginning in 2016.

The MNR and the LIRR will also accelerate

installation of Positive Train Control on their entire

routes, a state-of-the-art system for monitoring and

controlling train speed and operation that will make rail

travel safer by stopping trains before certain accidents

occur. The MTA will also invest in providing a safer

environment for customers. The MTA will continue to

expand Communication-Based Train Control, a system

that provides precise real-time information and control

over the location and operation of subway trains. All new

buses will be delivered with cameras pre-installed, and

the use of surveillance cameras in subways cars will be

tested for the first time later this year.
31

The MTA Capital Program will invest billions in

new technology projects that make it easier to
purchase tickets and access the system, deliver
Wi-Fi and cellphone service, enhance the customer
experience, make operations safer, and green
the system.
The MTA avoids some 17 million metric tons of

greenhouse gas emissions annually by moving nearly

nine million people via transit every day. The MTA has
established a goal of operating the nations largest fleet
of all-electric buses. The Capital Program will also fund

more than 100 MTA energy-efficiency projects, and will

test ten all-electric buses powered by solar energy and

charging stations.

Proposal: Renovate and Upgrade 30 MTA Subway

Stations
The MTA will revamp its subway station

renovation approach to rapidly redesign and completely

renew 30 existing subway stations across its system. The
MTA will use design-build procurements to deliver the

projects more quickly, at a lower cost, and with better

32

quality. The length of time to complete a station

redevelopment will shrink from two to three years to six
to twelve months. The MTA will complete work on the

majority of these 30 stations by 2018, and will finish all

by 2020.

Proposal: Modernize JFK and LaGuardia Airports

Governor Cuomo will also revitalize New Yorks

major airports, including LaGuardia and John F. Kennedy

(JFK) International Airport. These two airports serve

over 80 million passengers a year and support more than

$50 billion in economic activity for the region 15 but are

outdated relics of a bygone era. The Governor has

committed to demolishing LaGuardia and will replace it

with a new, unified world-class terminal, as well as
building a new AirTrain that will increase access to the

airport. In addition, Governor Cuomo will overhaul JFK

Airport according to a new master plan currently under

development.

Proposal: Build a New Empire Station Complex to

Replace Penn Station
Pennsylvania (Penn) Station is New York Citys

transportation hub and Americas busiest passenger

transportation facility. More than 650,000 passengers
33

pass through Penn on any weekday. 16 To most travelers,

Penn is a confusing subterranean maze plagued by aging

infrastructure and multiple design and operational

deficiencies. The station already operates well beyond
capacity and will experience a growing passenger load in

the coming years thanks to the growth of the Midtown

Manhattan business district and new development on
the West Side at Hudson Yards.

Governor Cuomo proposes the construction of a

new $3 billion Empire Station Complex that will expand

and re-imagine Penn Station and create a world-class

transportation hub befitting the Empire State. The

Empire State Development Corporation, in cooperation

with Amtrak and the MTA, will increase capacity at Penn
by redeveloping the entire complex through a series of
improvements, including a new train hall in the James A.
Farley Post Office across Eighth Avenue. Amtrak will

relocate the majority of its passenger operations to the

new train hall, which will also include services for LIRR

and New Jersey Transit, easing passenger congestion in

Penn Station.

The state will also dramatically renovate the

existing Penn Station facility. The project will widen

existing corridors, reconfiguring ticketing and waiting

34

areas; improve connectivity between the lower levels

and street level; bring natural light into the facility,
improve signage; simplify navigation and reduce

congestion; and expand and upgrade the retail offerings

and passenger amenities on all levels of the station. The

new station will include Wi-Fi, modernized train

information displays, and streamlined ticketing. Several

design alternatives will be considered, including major

exterior renovations involving 33rd Street, Seventh

Avenue, Eighth Avenue, and potentially, the Madison
Square Garden Theater.
The

simultaneous

redevelopments

will

be

advanced by a public-private partnership that will

operate on an unprecedented scale. The state will issue
solicitations to developers in January and will request

responses back in 90 days, with groundbreaking

targeted for late 2016. The construction cost is expected

to be in excess of $3 billion, including $2 billion to

redevelop Farley and Penn and at least $1 billion for

ancillary retail and commercial developments between
Seventh and Ninth avenues. Government sources

including the U.S. Department of Transportation, Port

Authority, and Amtrak will contribute $325 million in
investment and the remaining cost will be funded by
35

private investment, in exchange for an interest in the

long-term revenue stream generated by the retail and
commercial rents.

Proposal: Expand and Enhance the Javits Center

Since its opening in 1986, the Jacob K. Javits

Center has been called the Marketplace of the World,

generating $1.8 billion in economic activity and

Governor Cuomo proposes the construction of a

new $3 billion Empire Station Complex that will
expand and re-imagine Penn Station and create a
world-class transportation hub befitting
the Empire State.
supporting 17,500 jobs. 17 With 840,000 square feet of

flexible exhibition space, it occupies six city blocks along

the scenic Hudson River and in 2014-2015, hosted 177
events that attracted more than two million visitors. 18

36

Governor Cuomo will dramatically expand Javits

to cement New Yorks status as the premier destination

for large scale, world-class events and promote longterm economic growth in the region. The $1 billion

redevelopment project will increase the size of the Javits

Center

percent,
The Javits Center expansion
will generate
$393 million annually in new
economic activity and create
4,000 full-time jobs, 2,000
part-time jobs and 3,100
construction jobs.

by

62

from 2.1

million gross square

feet to 3.3 million

gross square feet.
The

project

will

include five times

more meeting room

space and the largest

ballroom

in

the

Northeast. The proposal includes the installation of a

34,000 square-foot solar energy array, the largest of its

kind on a public building in New York. As part of the

project, the Javits Center will seek LEED Platinum

certification. The expansion will generate $393 million

annually in new economic activity and create 4,000 fulltime jobs, 2,000 part-time jobs, and 3,100 construction

jobs. 19

37

Proposal: Jumpstart the Gateway Tunnel Project

The two rail tunnels under the Hudson River,

used by approximately 200,000 passengers daily, 20 were

considered a marvel of engineering construction when

first built more than 100 years ago. Over the decades,
these tunnels have served as the lynchpin of Amtraks
heavily traveled Northeast Corridor and a vital link for

daily commuters between New York and New

Jersey.

These essential pieces of infrastructure,

however, have been deteriorating for years and were

inundated with corrosive saltwater during Superstorm

Sandy.

Governor Cuomo recognizes that these tunnels

are critical to the future of New York and the regional

economy. Along with his counterpart in New Jersey and

members of the U.S. Senate, the Governor prodded

leaders in Washington, D.C. to split the projects

estimated $20 billion cost, with $10 billion to be paid for

by the federal government and $5 billion each from the

two states. This year, at the direction of the two

governors, the Port Authority of New York and New

Jersey will create the Gateway Development Corporation

to oversee the financing and jumpstart the construction

of this massive passenger rail project.
38

Proposal: Add Track and Passenger Capacity to the

Long Island Rail Road
For more than 175 years, the LIRR has served as

the essential component of Long Islands transportation

network and spurred economic development in Nassau

and Suffolk counties. Despite growth in population and

economic activity, track capacity on Long Island itself has
not expanded in decades. To ensure Long Islands future
prosperity, the Governor will undertake a series of

efforts to modernize and expand the capacity of the LIRR

transportation network.

The Main Line Corridor through Nassau County is

one of LIRRs oldest and busiest segments. Reliability is a

daily concern for the 120,000 passengers (41 percent of

LIRR ridership) who travel this section each day. 21 The

high volume of trains operating through this corridor

means that one incident often causes ripple effects

across four railroad branches. The new LIRR Expansion

Project will increase capacity on the Main Line, easing

the bottleneck that chokes traffic between Floral Park to

Hicksville, allowing the LIRR to increase service, reduce

congestion and train delays, and enable reverse-peak
trains to take people to jobs on Long Island during
traditional business hours.

39

The project will focus heavily on minimizing

impacts to the community, including environmental

reviews, grade crossing safety reviews, and robust

community engagement. Unlike previous plans, the

Governors proposal significantly reduces the number of
required property acquisitions from about 200 to 50.

The proposal also includes an innovative

landowner protection program. Residential land owners

will be offered the choice of compensation for the strip of

land (on average five feet) or a full buyout while

commercial landowners will be offered assistance from

Empire

State

Development

Corporation

compensation to remain in the community.

and

Proposal: Explore Feasibility of New Transportation

Access Points to Long Island
To further meet the unique transportation needs on

Long Island, the Governor proposes investing $5 million

to commission a study that examines the feasibility of a
tunnel connecting Long Island to either the Bronx,
Westchester County, or Connecticut, which could reduce

travel times for Long Island Residents commuting to

destinations beyond New York City.
40

Proposal: $1 Million Deep Water Port Study at Old

Shoreham Power Plant
The Governor also proposes investing $1 million

to study the potential for a deep water port at the old

Shoreham Power Plant. If feasible, a new intermodal

facility on Long Island for receiving imports and

distributing local goods to distant markets has the

potential to remove commercial traffic from the islands
congested roadways, improve air quality, and create
jobs.

Proposal: $50 Million Ronkonkoma Hub Expansion

Transit-oriented development projects ease

movement throughout the state. The projects also drive

economic development by rebuilding and expanding

infrastructure to improve job access and attract and

retain businesses and high-skilled workers. Governor
Cuomo will invest $50 million in parking, sewers, and
infrastructure at Ronkonkoma Hub; Long Islands

busiest train station. The investment will leverage at

least $600 million in private investment and create more

than 1,000 jobs while creating a vibrant new downtown
of mixed-use buildings on the once blighted 50 acre plot.

The Hub will connect major employers including Stony

41

Brook

University

and

Hospital,

Suffolk

Community College, and MacArthur Airport.

County

Proposal: $6 Million MacArthur Airport

Modernization and Revitalization

The Governor recognizes the vital services that

New Yorks Long Island airports provide residents and

businesses. MacArthur Airport is the busiest commercial

airport

on

Long

Island

with

nearly

650,000

enplanements in 2014. 22 Currently, MacArthur only

serves the domestic flight market, forcing Long Islands

more than three million residents to travel to New York

City for international travel. The state will close a $6

million funding gap to support a $10 million project to

convert an existing facility at MacArthur Airport into a
United States Customs Federal Inspection Station
(FIS). The Customs FIS facility will enable MacArthur to
attract and accommodate international passenger flights
from Europe and the Western Hemisphere and provide

capacity to process international air travelers. Adding

international

flights

to

MacArthur

will

improve

convenience for Long Island travelers and create 1,200

new jobs from adding airlines, a new federal government
presence, and increased regional tourism.
42

Proposal: Promote Economic Development at

Republic Airport
To encourage economic development around the

airport, the state designated Republic Airport as a taxfree site through the START-UP NY initiative. In 2016, the

state will market the site to attract new business

opportunities and will offer five sites to use for aviation

or aviation-related commercial development activities,

and a sixth as a new, 12.5 acre mixed-use development

that will include a new LIRR stop. This investment at

Republic will benefit the surrounding community by
helping qualified companies start, expand, or relocate to
the area.

Proposal: Launch $200 Million Competition to

Revitalize Upstate Airports
Building on the successful international airport

design competition to transform and modernize

LaGuardia and JFK airports for the twenty-first century,

the Governor proposes the creation of a $200 million

upstate

Airport

Economic

Development

and

Revitalization Competition to accelerate investments in

commercial passenger and cargo service airports that

will create thousands of well-paying jobs and promote

additional upstate economic development.
43

The competition is open to 74 public-use airports

and will award funding to implement innovative,

comprehensive,

and forward-looking

development

plans. The state will award capital funding of

approximately $40 million to five winning airports to

fund projects that enhance safety, improve operations

and access, reduce environmental impact, and create
better passenger experiences. The state will prioritize

funding for proposals that create jobs, incorporate

sustainable green building techniques, use renewable

energy, demonstrate support from airlines and the
community,

leverage

private

demonstrate cost effectiveness.

investments,

and

Proposal: $22 Billion Capital Plan for New Yorks

Roads and Bridges
To continue building smarter and better than

before, the Governor is unveiling a record $22 billion

multi-year capital planthe largest in the states

historyto upgrade critical roads, bridges, and other

vital transportation infrastructure throughout the state,

especially upstate. The program includes a five-year DOT

capital plan, which will fund improvements such as the

new BRIDGE and PAVE NY programs, rail and transit

investment,

and

new

44

upstate

airport

design

competition.

The

Governor

will

also

provide

unprecedented aid to the Thruway Authority to continue

construction of the New New York Bridge, make vital
investments in the Thruways core system, and hold tolls
down for all users.

Proposal: Enact the Thruway Toll Reduction Plan

Over 145 million vehicles use the Thruway

annually, including 128 million passenger vehicles and

almost 16 million commercial vehicles. 23 To ease the

financial burden of passenger and commercial traffic, the

Governor proposes a three-part Thruway Toll Reduction

and Protection Plan, that will keep tolls flat until at least

2020 for all users, cut tolls in half for nearly one million
frequent travelers, and eliminate tolls for farm vehicles.

Reducing the Thruways toll costs will strengthen New

Yorks regional economies that rely on the Thruway to

move goods to markets and people to places of

employment.

First, the Governor proposes a new tax credit that

will cut tolls in half for New York residents and

businesses who frequently travel the Thruway. This

credit will benefit nearly one million passengers and will

apply to: 1) passenger vehicle owners using E-ZPass and
45

paying $50 or more in annual tolls and 2) businesses and

commercial vehicle owners using E-ZPass and paying

between $100 and $9,999 in annual tolls.

Second, the Governor proposes a new 100

percent tax credit that will eliminate tolls for vehicles

using EZ-Pass that bring farm goods to market. This
credit will save the agricultural sector $5 million
annually.

Third, the Governor proposes a $700 million

investment in Thruway infrastructure, on top of last

years commitment of $1.285 billion. This combined

investment will allow the Thruway to freeze tolls for all

drivers until at least 2020 and continue construction of

the New NY Bridge which will fully replace the Tappan

Zee Bridge in 2018. The $3.98 billion design-build

project championed by Governor Cuomo and overseen

by the New York State Thruway Authority remains on
schedule and on budget. The project continues to have a
significant economic impact for New Yorkers. More than

5,000 people and 622 New York-based subcontractors

and suppliers have worked on the project to date. 24

46

Proposal: Launch the $1 Billion New BRIDGE NY

Program to Fix Bridges
Villages, towns, cities, and counties maintain

approximately 8,600 bridges, 34 percent of which are in

poor condition. 25 Municipal governments struggle to find

the necessary funding to maintain the condition of these
bridges and recent changes in federal eligibility have
made that challenge even more difficult. As a result,

every year, many bridges on local roadways must be load

The Governor proposes a three-part Thruway Toll

Reduction and Protection Plan, that will keep tolls
flat until at least 2020 for all users, cut tolls in half
for nearly one million frequent travelers,
and eliminate tolls for farm vehicles.
posted or closed, which limits traffic to lighter vehicles
or requires lengthy detours.

When bridge traffic is

restricted or halted, emergency vehicles cannot pass,

evacuation routes are cut off, commercial vehicles must

find other routes. Public safety and critical commerce are

jeopardized.

47

To upgrade our bridges, the Governor proposes

BRIDGE NY, a new $1 billion initiative that will provide

$500 million to help municipal governments replace,

rehabilitate and maintain vital local bridges and invest

$500 million in state-owned bridges. BRIDGE NY will

help expand and protect public safety and critical
economic growth and commercial activities across the
state. Projects will be selected based on the bridges

condition rating, economic impact, environmental

benefits, and reduced risk of flooding.

Proposal: Launch the New $1 Billion PAVE NY

Program to Build and Fix Roads
Approximately

1,600

municipalities

are

responsible for maintaining more than 97,000 centerline

miles of pavement, 48 percent of which has been rated in

fair or poor condition. 26 Without intervention and

investment, continued deterioration of pavement

condition will result in road closures or abandonment
and impede efforts to attract economic activity.

To pave roads around the state, the Governor

proposes PAVE NY, $1 billion initiative that will invest

$500 million to pave local roads and $500 million to pave

state roads. To gain the great return on state investment

dollars projects will, where appropriate, incorporate use
48

of

recycled/reclaimed

materials

and

permeable

pavements. This massive proposed investment in paving

projects will ensure smoother rides for passenger and

commercial traffic and fewer costly delays and
slowdowns.

Proposal: Launch a New $500 Million Infrastructure

Hardening Program
With the increasing frequency of extreme

weather events, the resiliency of New Yorks roadways

has never been more important. For example, the Saw

Mill River Parkway, between the Taconic State Parkway

and Pleasantville Road, is one of the most congested state

roadways in Westchester County. This section of the Saw

Mill serves approximately 51,000 vehicles daily and

provides critical connections from northern Westchester

County to the Cross Westchester Expressway, Tappan
Zee Bridge, and New York City. 27 Yet, the Parkway is

subject to severe and recurring flooding. Since 2011, this

segment of the Saw Mill has been closed due to flooding

from extreme weather events more than 15 times. A

DOT estimate puts the cost of these delays and closures

at $5 million annually to the traveling public. 28 The

Governor proposes the $500 million Extreme Weather

Infrastructure Hardening Program to make safety and
49

resiliency enhancements to roadways across the state,

that have proven to be susceptible to flooding and other
extreme weather related events.

Through the Extreme Weather Infrastructure

Hardening Program, DOT will construct a new roadway

on the Saw Mill that will sit above the flood plain. This

$60 million investment will mitigate the frequent need to

divert traffic through local communities, provide better

access to local emergency responders, and prevent the

isolation of more rural parts of the region from hospitals,

food, and other supplies and services. The Program will

also invest an additional $440 million on other such

projects throughout the state.

Proposal: Create the Design and Construction Office

The state is in the midst of an enormous capital

investment in infrastructure and economic development

projects and must do all that it can to reduce the time and
cost of construction.

To curtail the loss of state dollars caused by

avoidable

construction

delays,

the Governor

proposes the creation of the New York State Design and

Construction Corporation (DCC), a new subsidiary of the

Dormitory Authority of the State of New York

50

(DASNY). DASNY is one of the states largest public

authorities in terms of its construction and financing

output and has played a vital role in supporting the
states economic development and infrastructure since

1944 through its project management and construction

services.

The DCCs primary purpose will be to provide

additional project management expertise and oversight

on significant public works projects undertaken by state

agencies, departments, public authorities and public
benefit corporations throughout the state. The DCC will

be able to collaborate with agencies and authorities to

ensure

that

budget

limits

construction

projects

are

managed

efficiently and comply with construction deadlines and

specified

at

the

onset

of

these

projects. Adding this layer of management will provide

the state with additional costs savings on many of
its large scale publicly-funded construction projects.

PART THREE: UPSTATE ECONOMIC GROWTH

New York State has created more than 759,000

private sector jobs since December 2010. 29 The states

private sector job count is at an all-time historic high

with more than 7.9 million jobs. 30 Unemployment
51

continues to decline in every region from 8.4 percent in

December 2010 to 4.8 percent as of November 2015
the lowest level in eight years. 31

The state achieved these impressive results

through the Governors new regional approach to

economic

development

entrepreneurial

government

and

groundbreaking

paradigm.

In

2011,

Governor Cuomo replaced the states previous top-down

approach to economic development with a new bottom-

up approach driven by a competition organized around

ten Regional Economic Development Councils (REDCs).
Each region of the state has a REDC that convenes

stakeholders from higher education, business, and

government

to

develop

long-term

economic

development strategic plans that leverage each regions

unique resources and identify areas of opportunity for

investment. To date, the state has awarded nearly $4
billion through five rounds of the REDCs for more than

4,100 projects and created and retained more than

200,000 new jobs across the state. 32

52

The Governor applied the same bottom-up

approach utilized by REDCs to spur an economic

renaissance in Buffalo, a city that has suffered since the

collapse of its manufacturing economy in the late
twentieth century. The Governor has committed $1

billion to the Buffalo area and worked with its Regional

Economic Development Council, as well as experts from
The

Brookings

Institution, McKinsey
To date, the state has
awarded nearly $4 billion
through five rounds of the
REDCs for more than 4,100
projects and created and
retained more than 200,000
new jobs across the state.
several

industry

& Company, and the

University
Buffalos

of

Regional

Institute to shape the

future of the region.

Major projects are

underway, including
the development of

innovation

and

advanced

manufacturing hubs anchored by private companies

such as IBM and AMRI. Solar power provider SolarCity

will anchor the Buffalo High Tech Manufacturing

Innovation Hub at RiverBend with a ten-year, $5 billion
investment that will create approximately 3,000

permanent jobs in Buffalo and 2,000 jobs elsewhere in

53

the state. Overall, the Buffalo Billion will generate a total

investment of over $8 billion and create approximately
14,000 direct and indirect jobs. 33

The state is investing more than $108 million in

workforce development, tourism plan development,

waterfront development, and other strategic community
revitalization

projects

in the city of Buffalo and

Overall, the Buffalo
Billion will generate a
total investment of over
$8 billion and create
approximately 14,000
direct and indirect jobs.

in Western New York.

To replicate the

success of the Buffalo

Billion

model,

the

Upstate

Revitalization

Governor launched the

Initiative (URI) in 2015,

a $1.5 billion investment designed to promote the

growth and sustainability of seven upstate regions. The

URI awarded three regions Central New York, Finger

Lakes, and Southern Tier $500 million each over five

years to support projects and strategies that create jobs,

strengthen and diversify economies, and generate

economic

opportunity

within

the

region.

These

communities are now working with the state to

54

implement their strategic plans and will be identifying

projects for funding in 2016.
Establishing

regional

industry

clusters

is

recognized as an effective way for states to coordinate

their economic development efforts. 34 According to

prominent economist Michael Porter, clusters allow

regions to coordinate existing resources in industry,

academia,

and

government,

driving

innovation,

productivity, and efficiency while reducing the cost of

doing business. 35 In 2015, Governor Cuomo established

the Regional Economic Cluster Program, which directed
each region to complete an inventory of their industrial

and innovation assets and submit strategic plans to

target growth in a single economic cluster. All ten regions
submitted Cluster Plans through Round V of the REDCs
and cluster proposals ranged from cyber technology to
advanced

manufacturing

to

food

and

beverage

manufacturing. The Governor has bolstered these efforts

by investing in strategic industries that will modernize

the states economy and give New York a competitive

edge.

After decades of false starts and promises,

Governor Cuomo succeeded in making upstate Resort

Gaming Destinations a reality in 2014. In 2015, the New

55

York State Gaming Commission unanimously approved

licenses for resort gaming destinations in Sullivan,

Schenectady, and Seneca Counties. These world-class

facilities will include new hotels, restaurants, and other

attractions that will bring tourists, including the more

than 50 million individuals who visit New York City
every year, to upstate regional attractions. 36

All of New York State will benefit from these

gaming resorts: 80 percent of the gaming revenue will

support public education (in addition to existing aid) or

provide property tax relief statewide. Ten percent will

provide local government assistance to each county in

the three upstate casino-eligible regions, and the final

ten percent will be split between the gaming facilitys
host municipality and county. 37

Proposal: Invest $750 Million through Round Six of

the Regional Economic Development Councils
In 2011, Governor Cuomo created the Regional

Economic Development Council competition to develop

regional economic development plans through a bottom-

up approach that brought together higher education,

industry, and government leaders to plan the future of

their region. The state has invested nearly $4 billion

through the REDCs that has funded more than 4,100
56

projects and created more than 200,000 new jobs across

the state. To build on the success of the REDC program,

the Governor proposes continuing this regional

economic development approach with a sixth round of

the REDC awards with $750 million to fund regional

priority projects.

Proposal: $200 Million for URI Runner Ups to Fund

Top Projects
The Upstate Revitalization Initiative will invest

$1.5 billion in the Central New York, Finger Lakes, and

Southern Tier regions over the next five years. Building
on the success of this model, the Governor proposes

funding an additional $50 million to each of the four

additional upstate regions that did not win the Upstate

Revitalization Initiative competition (Mohawk Valley,
North Country, Capital District, and Mid-Hudson) to fund

priority economic development projects and support

implementation of each regions strategic plan for

economic growth. In total, the average investment in

each of these regions will be nearly $145 million.

57

Proposal: Invest $100 Million in Downtown

Revitalization Program
According to Smart Growth America, companies

in the United States are increasingly seeking to relocate

and invest in walkable downtown locations in an effort

to attract and retain talent, build brand identity, and

foster

company

culture. 38 Downtown
revitalization

also

attracts

more

residents by creating

a sense of place and

affordable
According

Brookings
investing

living. 39

to

the

Institute,

in

urban

Companies in the United

States are increasingly
seeking to relocate and
invest in walkable
downtown locations in an
effort to attract and retain
talent, build brand identity
and foster company culture.

centers can improve economic performance, reduce

infrastructure costs, and enhance the economic wellbeing of surrounding areas.
To

revitalize

ten

struggling

downtown

Revitalization

Initiative

(DRI),

communities the Governor proposes the $100 million

Downtown

comprehensive approach to transform long-forgotten

areas into vibrant neighborhoods where tomorrows

58

workforce will want to live, work, and raise a family. The

DRI will invest in housing, economic development,

transportation, and community projects. Each REDC will

select a community that is losing population or in

economic decline to work with outside policy and

planning experts and planners from the Department of

State and Housing and Community Renewal to create a
strategic downtown revitalization plan as part of the

2016 REDC process. Eligible projects will include those

that grow small businesses and employment, expand

housing, improve transportation, and partner with large
institutions such as universities and hospitals.

Proposal: Bring Mixed Martial Arts to New York

New York is the only state in the nation that does

not allow professional Mixed Martial Arts (MMA)

contests. Thousands of New Yorkers attend dozens of
unregulated amateur MMA events in New York each
year 40 and unlicensed promoters organize and promote

amateur MMA contests in all corners of New York State.

The Governor seeks to authorize both amateur and

professional MMA and will ensure that contests happen

under either the supervision of the New York State
Athletic Commission or an alternative authorized
59

sanctioning entity. It will place firm controls on MMA, its

participants and promoters that ensure the protection of

fighters and fans.

PART FOUR: TOURISM: I LOVE NY

Tourism is New Yorks fourth largest industry,

responsible for over 883,000 jobs and an economic

impact that grew to over $100 billion in 2015 for the first

time in the states history. Governor Cuomo has tripled

support for tourism, investing over $100 million since

2011New Yorks largest tourism effort in decades and

one of the biggest public commitments to tourism in the

nation. Over the same period, the number of

international visitors has increased 12 percent and

direct visitor spending has grown by 16 percent. Last

year, overseas travelers visited New York more than any
other state for the fourteenth year in a row. 41

This investment has included the launch of a

cutting-edge digital marketing strategy, including an

award-winning promotional campaign and the states I

LOVE NEW YORK mobile app, downloaded 41,000 times.

These efforts have resulted in 1.6 million visits to

iloveny.com, a 79 percent growth in the last eighteen

months. 42 To bring further attention to all that New York
60

has to offer, Governor Cuomo has hosted a series of

special events across the state, from the Adirondack

Summer and Winter Challenges, to the Bassmaster

Governor Challenge, to the Governors Cup Beverage &
Culinary Tours.

The New York State Fairgrounds are a key driver

of tourism in Central New

York.

The

Fairgrounds

deliver an average annual

economic impact of over

$100 million and serve as

an integral part of New

York

States

tourism

economy. In 2015, events

held at the Fairgrounds
attracted

roughly

1.4

Tourism is New Yorks

fourth largest industry,
responsible for over
883,000 jobs and an
economic impact that
grew to over $100
billion in 2015
for the first time in the
states history.

million visitors, including more than 908,000 for the

Great New York State Fair alone. 43

Last year, the state embarked on a $50 million

renovation of the Fairgroundsthe first renovation in

over 100 years. 44 This summer, the Great New York State

Fair will open with a new Main Gate; modern RV facilities

that will offer upgraded water, sewer and electric hookups; an expanded, state-of-the-art Midway; and wireless
61

internet across the Fairgrounds. In 2017 and 2018, the

state will continue this transformation with a rebuilt

Chevy Court outdoor concert venue, new equine
facilities, a large Expo Center, and new festival grounds

featuring recreational space, a pond, and a replica of the

historic Erie Canal.

Proposal: Expand Tourism Investment to $50 Million

Governor Cuomo proposes to invest an additional

$5 million in New Yorks booming tourism economy to

bring the states investment to an unprecedented $50

million. The state will invest $25 million in the I LOVE

NEW YORK marketing campaign and $13 million in

Market NY to support improvements to hotels,

convention centers, and other attractions. To shine a

spotlight on regional attractions the Governor will host

another round of special events including winter and

summer events in the Adirondacks, fishing tournaments

in the Finger Lakes, and wine cups upstate.

Proposal: Adirondack and New Challenges

Governor Cuomo will host his first annual Catskill

Challenge this summer. Modeled after the successful

annual Adirondack Challenge, the Governor will invite

state

and

local

officials,
62

tourism

industry

representatives, and outdoor enthusiasts to engage in a

day of world-class outdoor activities, while showcasing
the recreational opportunities the region has to offer

including fly fishing, paddling, hiking, and mountain

biking.

Proposal: Invest $5 Million to Promote Outdoor

Recreation in the Catskills
Working with the Department of Environmental

Conservation,

the

Empire

State

Development

Corporation will launch a $5 million tourism advertising

campaign this year to promote the Catskills region to
visitors from around the world. The effort will include

print and television ads, expanded services for the I

LOVE NY bus, and a Catskills concierge program. This

campaign will also promote Governor Cuomos Ride the

Catskills tourism website, an online resource that

features a series of itineraries and trips for visitors and

locals to enjoy while traveling by motorcycle, car, bike,
boat, or foot.

New York will also further its long standing

partnership with the Open Space Institute to invest $7.3

million to transform Minnewaska Preserve State Park, on

the Shawangunk Ridge, into a world-class tourism

destination. The project will feature a 6,000-square-foot

63

visitor center, improved parking, better parking, and

space for exhibits and education services.

PART FIVE: PRODUCING NEW YORKS BEST

Since taking office, Governor Cuomo has made

growing New Yorks agricultural economy a top priority.

To this end, the Governor has launched a series of

initiatives that support agricultural research, promote

locally grown and produced foods, help to market the
booming craft beverage industry, and connect our
farmers and agri-businesses to new markets through

farmers markets, Taste NY stores, and increased

procurement opportunities. Over the past five years, the

states REDC process has also awarded over $275 million

in funding to agri-business enterprises across the state

from the east end of Long Island to the wine region along
the shores of Lake Erie.

These investments are already paying dramatic

dividends. Last year, farmers in New York State set an

all-time sales record, with $6.4 billion in cash
receipts. 45 This is a 36 percent increase since 2010 -stronger growth than the nation as a whole. 46 New York

remains a leader in Greek yogurt production, producing

more each day than Greece does. 47 We lead the nation in

64

sour cream and cottage cheese production; second in

apples and maple syrup; third in grapes and cauliflower;
fourth in milk and cheese production, pears, and squash;

and fifth in the nation in sweet corn, onions, and tart

cherries. 48

Protecting and Enhancing Farmland and Agri-business

Since taking office, Governor Cuomo has invested

historic levels of funding to protect farmland and

support agri-business across the state. As part of this

effort, the state is investing $20 million to protect

farmland in the Hudson Valleythe first-ever regional

farmland protection initiative of its kind. The state is also

providing $30 million in grants to farms and agri-

businesses throughout the Southern Tier to increase

production, spur economic development, and introduce
environmental stewardship best practices.

Last year, farmers in New York State set an

all-time sales record, with $6.4 billion in
cash receipts.

65

Streamlining Regulations to Aid Farmers

In 2014, Governor Cuomo created the SILO Task

Force (Strategic Interagency Task Force on Lessening

Obstacles to Agriculture) to identify and remove

regulatory and administrative barriers that farmers face

when they interact with state government. In 2015, the

state adopted a recommendation of the Task Force and
streamlined
registration

farming

and

regulations

certification

environmental protections.

for

while

pesticide

maintaining

Supporting Clean Energy and Climate Adaptation for

Agriculture
The state is taking a series of actions at the

intersection of climate change and agriculture including

a $500,000 pilot program to help farmers adapt

agricultural practices to climate change, a collaboration

with Cornell University to design a new farmer education

program on climate resiliency, and a new Clean Energy

for Agriculture Task Force charged with developing a

strategic plan to address the opportunities and
challenges of widespread deployment of clean energy
technologies on farms.

66

Expand New Yorks Craft Beverage Industry

New York has emerged as a national leader in

craft beverage manufacturing. The state is now home to

nearly 900 wineries, breweries, distilleries, and

cideries. 49 When combined with distribution and retail,

producers account for more than $27 billion in annual

economic impact and support tens of thousands of jobs
statewide. 50

Over the last five years, the Governor has

collaborated with the craft beverage industry to achieve

business friendly reforms that have resulted in

remarkable growth. He created the One Stop Shop, which

has provided individual attention to almost 800

businesses, and he has committed $9 million to promote

and advertise the industry. New York State now ranks

third in the nation in wine and grape production, second

in apple production, and is home to three of the 20 top-

producing breweries in the country. Since 2010, the

number of farm wineries in New York has increased by

over 60 percent and the number of microbreweries has

increased by 233 percent. Since Governor Cuomo took

office, farm-based beverage licenses have more than

doubled and the new Farm Brewery Law has already

67

resulted in 106 new licensees. In 2015 alone, the State

Liquor Authority issued 141 new manufacturing

licenses, including eight cidery licenses, 35 distilleries,

25 winery licenses, and 73 brewers.

In 2015, Governor Cuomo hosted the states third

Wine, Beer, Spirits, and

Cider

Summit,

stakeholders

Since 2010, the number

of farm wineries in New
York has increased by
over 60% and the
number of
microbreweries has
increased by 233%.

and

where

state

officials identified new

opportunities to build on

this remarkable progress

including:

funding

for

additional marketing and

promotional

activities,

support for expanded education and research; and a

further reduction in paperwork and other state

regulatory barriers.

Proposal: Expand the Taste NY Program and Open

Four New Stores
Governor Cuomo launched Taste NY in 2013 to

highlight and encourage the purchase of New York-made

foods and beverages. 51 Taste NY opened its first free-

standing store in 2013 in the historic Todd Hill building

along the Taconic Parkway. Just two years later, Todd
68

Hill exceeded $1 million in revenue. 52 In 2015, Taste NY

opened its eleventh store and the first outside New

York State in San Juan, Puerto Rico in the New York

State Office of Trade and Tourism and tripled sales to

$4.5 million in revenue over 2014 revenue. The program

also showcased more than 1,100 producers at Taste NYsponsored

partnerships.

marketplaces,

events,

and

through

The Governor proposes to double Taste NY

revenue to $9 million in 2016 by investing $1.1 million to

add four stores, increasing concession partnerships at

sports and entertainment locations, and expanding sales

displays at high-traffic transportation hubs and other

venues. To drive revenues Taste NY will open four new

freestanding stores in White Plains along the Taconic

Parkway, at the Lock E-13 Rest Area on the Thruway in

the Mohawk Valley, at the Niagara Falls Amtrak Station,

and at Pier A in Battery Park. Taste NY will also open

concessions in four additional sports venues, in every
State Park, and recruit 100 new high-quality producers
to join the program.

Taste NY will be strategically featured in 2016 at

the Barclays Center in Brooklyn at a premium bar that

will increase brand exposure for New York craft
69

beverage

producers

and

provide

approximately two million guests per year.

access

to

Proposal: Modernize and Simplify the Alcoholic

Beverage Control Law
The Alcoholic Beverage Control (ABC) Law dates

back to 1934 and is a puzzling web of rules that confuses

potential and existing licensees, regulators, and even

attorneys. For example, the ABC Law makes multiple
licenses available for the retail sale of alcoholic

beverages that depend on the type of beverage being sold

and whether it is sold to go or by the glass. 53 It is

nearly impossible for a new craft beverage entrepreneur

to determine what license is needed. The ABC Law

creates confusion that often results in delays, financial

hardship, and loss of revenue to businesses that attempt
to navigate the system. The ABC Law still contains arcane
restrictions that date back to the end of Prohibition. 54

While the Governor enacted The Craft Act in 2014

to take steps to modernize the ABC Law, the Law

requires further modification. The Governor formed a
working group of industry stakeholders to provide

recommendations to revise and modernize the ABC

Law. In 2016, the Governor will introduce legislation to

70

modernize the ABC Law by addressing the issues stated

above along with those identified by the working group.
Proposal: Update the Alcoholic Beverage Control Law
to Grow E-Commerce
U.S.

e-commerce

retail

sales

of

alcoholic

beverages totaled nearly $88 billion in the third quarter

of 2015 alone. 55 This platform presents a tremendous

opportunity for New York craft beverage producers and

suppliers. To increase e-commerce revenues for New

York alcoholic beverage producers and suppliers, the

state will work with industry stakeholders to develop
and introduce legislation in 2016 that will amend the

ABC Law to create a clear legal framework for Internet

sales and reduce confusion within the industry. This

legislation will also include proposals to standardize

practices for third-party providers who facilitate

transactions that connect alcoholic beverage retailers to

consumers.

Proposal: Cut Taxes for Craft Beverage Producers

Under current tax law, breweries that produce

less than 60 million gallons of beer per year are eligible

for a tax credit that provides $2 million in benefits every

year. To encourage the growth of start-up craft beverage

71

producers, the Governor proposes to expand eligibility

for this tax credit beyond breweries to cideries that

produce less than 60 million gallons annually, wineries

that produce less than 20 million gallons annually, and

distilleries that produce less than 500,000 gallons

annually. These proposals will provide $2 million in

savings to these producers that will allow them reinvest
and grow their companies in New York.

Finally, the Governor also proposes exempting

breweries, distilleries, cideries, and wineries from

alcoholic beverage taxes associated with free tastings,

lowering costs for hundreds of craft producers and

allowing them to better market their products and

reinvest in their businesses. The state collected $251
million in these taxes last year and the craft industry
accounts for $10 million of the total. This change means

that an additional $2 million will remain in the pockets

of these producers.

PART SIX: BUILDING A CLEAN ENERGY ECONOMY

Since taking office, the Governor has created and

pursued the most aggressive environmental and

sustainability agenda of any state in the country to

mitigate climate change. This bold agenda drives and

72

complements the states efforts to foster and expand

New Yorks growing clean energy economy.

Greenhouse gas emissions are driving up air and

water temperatures and altering the earths climate. 56

New Yorkers have already begun to face the long term
effects

of

global

climate

change,

dealing

with

unprecedented extreme weather events like the historic

snowfall in Western New York in 2014, tornadoes in

Central New York in 2013, and the billions of dollars of

damage and loss of life that resulted from Hurricanes

Irene, Lee and Super Storm Sandy.

New Yorkers have already begun to face the long

term effects of global climate change, dealing with
unprecedented extreme weather events.
In the wake of 11 presidentially-declared natural

disasters in his first five years in office, 57 the Governor

has shifted away from an outdated approach to the

energy sector to one that pushes our private sector

partners to step up and accelerate the deployment of

energy efficiency, solar, wind, and other clean
technologies. This strategy, called Reforming the Energy
73

Vision (REV) is a multifaceted regulatory approach

designed to spur private investment in clean energy,

build a thriving clean tech economy, strengthen our

communities, and provide universal access to clean,

affordable power. Since taking office the Governor has
invested

in

the

Western Hemispheres
largest $5 billion solar
panel gigafactory in

Buffalo, a new $700

million

commercial
wafer

large-scale

silicon

manufacturing

The New York State Energy

Plan established an
aggressive goal for New York
to rely on 50 percent
renewable energy for its
total energy needs by 2030.

facility in Genesee County, and $35 million to build a

research and development hub that will help researchers

and companies turn their ideas into commercialized

technologies and products.

In 2015 New York advanced an aggressive State

Energy Plan that called for a statewide reduction of

greenhouse gas emissions 40 percent by 2030 and for 50

percent of our electricity to come from renewable

resources by 2030. Today, 25 percent of New Yorks

energy consumption is comprised of renewable energy

resources such as solar, wind and hydropower. 58 This
74

goal requires the state to double its consumption of

renewable energy in 15 years.

The Governor will continue efforts to build a clean

energy industry in New York that will help the state to

tackle the challenges posed by climate change while

creating tens of thousands of jobs and generating billions

of dollars in economic activity.

Proposal: Adopt an Aggressive Clean Energy

Standard
Today, 25 percent of New Yorks energy

consumption is comprised of renewable energy

resources such as solar, wind and hydropower. 59 The

New York State Energy Plan established an aggressive

goal for New York to rely on 50 percent renewable

energy for its total energy needs by 2030. 60 This goal

requires the state to double its consumption of
renewable energy in 15 years.

The Governor knows that mandates drive change

and has called on the Department of Public Service (DPS)

to work with the Public Service Commission (PSC) to
formally adopt this Clean Energy Standard, among the

highest in the nation. Adoption of this enforceable

standard will drive change in the private sector as

companies work to develop more sources of renewable

75

energy for New Yorkers and energy markets are

provided with the clear direction and long-term stability

necessary to invest in the development of new clean

energy solutions.

As the state works to meet this aggressive goal it

must support upstate nuclear power plants that provide

important sources of carbon-free energy. If any one of

those plants were to close the market would likely rely

on fossil fuel-fired plants to replace their energy source

which would set back the states attempt to reduce

carbon emissions. As DPS works to support the

development of new sources of renewable energy it will

also develop market mechanisms to provide financial

support for safely operating upstate nuclear power

plants. These efforts will ensure that safely operating,

fully licensed nuclear power plants are able to provide a

necessary bridge to help New York achieve its 50 percent

renewables goal by 2030.

Proposal: Adopt the Clean Energy Fund

The state will advance a ten-year, $5 billion Clean

Energy Fund (CEF) to support clean energy projects and

programs that will help New York to partner with the

private sector to achieve the goal of having 50 percent of

76

our energy come from renewable resources by 2030. The

CEF is funded by surcharges on utility bills, and in 2016,

will include an immediate decrease of $90 million in

ratepayer collections, and a total reduction of $1.5 billion

by 2025.

CEF-funded programs will increase deployment

of clean energy solutions and renewable energy to

millions of homes, buildings and communities in New

York; invest $700 million in cutting edge research and

development to accelerate homegrown innovation in the

clean energy industry; invest $1 billion to deploy enough

solar to equal the amount of energy generated by six

coal-fired power plants through the Governors NY-Sun

initiative; and capitalize the nations largest Green Bank

to partner with the private sector to finance clean energy

projects like wind and solar farms and energy efficiency

retrofits.

Proposal: Increase Renewable Energy Consumption

at State Owned Facilities and on SUNY Campuses
In

2012,

Governor

Cuomo

launched

the

BuildSmart initiative aimed at improving energy

efficiency and reducing emissions at state facilities by 20

percent before 2020. 61 As a result of this program, New

York State reduced energy bills at numerous public

77

buildings by nearly $40 million. 62 In 2016, state agencies

will aggressively increase their renewable electricity

consumption to reduce emissions.

To help invest in retrofits and the deployment of

renewable energy on public facilities, NYPA will finance

$1.5 billion of clean energy projects across state-owned

buildings and local and municipal properties by 2020.

This investment will help government entities complete

energy efficiency, renewable distributed generation,

microgrids, and other smart grid technology projects.

NYPA will also work with state agencies to use state

property for community solar projects that will allow

private consumers who live nearby to access clean,

renewable energy.

In 2015 the Governor announced that Robert

Moses State Park will become the first energy-neutral

state park in the nation with the construction of a $1.7

million, 500 kilowatt solar project. In 2016, the Governor

will continue to utilize state-owned properties to achieve

our emissions reductions goal with the construction of

up to five additional megawatts of solar at Jones Beach,
Sunken Meadow and Robert Moses State Parks.

Together, these solar investments will generate

approximately 50 percent of the electricity demand for
78

Long Island State Parks and reduce carbon emissions by

5,000 metric tons per year.

The State University of New York (SUNY) is the

largest comprehensive university system in the country

with 64 campuses across the state and consumes 1.2

million megawatts of energy every year. To help the state

meet its renewable energy goals, SUNY will install solar
and other renewable energy sources on each of its 64

campuses by 2020, with the Governor calling on private

colleges and universities to join the SUNY in this effort.

Proposal: Make 500,000 Homes and 20,000

Businesses More Energy Efficient By 2020

The least expensive and most effective way to

meet our state energy goals is simply to reduce the

overall energy consumption of New Yorks homes,

businesses, and institutions by making them more

efficient. 63 Increasing energy efficiency also lowers

utility bills for customers and enables businesses to

reduce their operating costs.

The state will increase the energy efficiency of

500,000 homes and 20,000 businesses by 2020, reducing

their carbon emissions and utility bills by $1.5 billion.

The state will invest part of the Clean Energy Fund to
help property owners and renters audit their current
79

energy use and identify energy savings opportunities,

and replace inefficient systems and appliances with highefficiency models wherever possible.

Proposal: Install Solar on 150,000 New Homes and

Businesses by 2020
Today, 28,000 homes and 2,000 businesses have

installed solar. 64 To increase these figures and reduce

emissions from privately owned homes and businesses,

the state will leverage the growth in New Yorks solar
industry and provide technical and financial support to

install solar panels on 150,000 additional homes and

businesses. The states Shared Renewables Program will

also allow nearby community members to share in the

solar power generated by projects on commercial

properties, further reducing emissions across private

residences.

Proposal: Build 300 Additional Wind Turbines by

2020 and Create a Master Plan for Offshore Wind
Today, over 1,000 large-scale wind turbines have

been built throughout upstate New York. Spread across

19 wind farms, these massive turbines generate over

1,600 megawatts of capacity, enough to power over

600,000 homes.

80

To meet the requirements of the Clean Energy

Standard, New York will need even more of our power to

come from carbon-free wind farms. To jumpstart this

growth, the state will invest $150 million in 2016 for a

solicitation to support the construction of large scale

renewable projects such as solar, wind, hydro, and fuel

cells. This financial support, along with new activities

spurred by the Clean Energy Standard, will help build an
additional 300 wind turbines and increase New Yorks

wind production by nearly 40 percent by 2020 for a total

generating capacity of 2,200 megawatts, enough wind to

power nearly 800,000 homes. 65

New York has 127 miles of coastline 66 that

present an enormous opportunity to generate energy

through the deployment of offshore wind turbines. As

the state advances a strategy to capture this potential, it

is critical to ensure that offshore wind does not come at

New York has 127 miles of coastline that present an

enormous opportunity to generate energy through the
deployment of offshore wind turbines.

81

the expense of vital coastal habitats and economies,

including tourism, fishing, and boating.

To develop a path forward for the siting of

offshore wind turbines, the state will engage community

members, environmental advocates, and government

partners at all levels to create the New York Offshore

Wind Master Plan that will serve as a blueprint for the

future of offshore wind in New York. The state will
provide $5 million to support the planning effort.

Proposal: Invest $8 Million to Build Out Community

Microgrids
The Clean Energy Fund has invested $10 million

to date to help local communities and municipalities

develop community microgridsenergy systems that
provide

customers

with

an

ability

to

operate

independently in the event of a power outage. The state

awarded 83 first round winners with $100,000 in 2015

to conduct feasibility studies for the construction of

microgrids.

This year the state will invest $8 million to

provide $1 million grants to eight projects that will help

communities take the next step toward building
microgrids. These funds will pay for audit-grade

engineering designs and business plans so communities

82

can then commission bids to construct the microgrids

and increase energy resiliency.

Proposal: Launch the $3 Million Energy to Lead

Competition for Colleges and Universities
There are more than 270 colleges and universities

in New York that enroll over 800,000 students. 67 Higher

education institutions consume a great deal of energy,

produce a lot of waste, are hotbeds of innovation and

next-generation discoveries, and educate the leaders of

tomorrow. To capitalize on these opportunities the state

will launch the $3 million Energy to Lead Competition as

part of its broader REV Campus Challenge program. The

Competition will award three $1 million prizes to the

most ambitious, student-led proposals for improving
energy efficiency, installing renewables, and reducing
emissions on their campuses and in their communities.
Proposal: Invest $75 Million in Affordable Housing
and Retrofit 100,000 Units by 2025

Emissions from residential and commercial

buildings in New York contribute 40 percent of the

states overall greenhouse gas emissions. 68 New Yorks
government-subsidized affordable housing stock

hundreds of thousands of public and subsidized

83

units 69represents a huge opportunity to reduce energy

consumption, costs, and greenhouse gas emissions.

As a part of the states goal to make 500,000

homes more energy efficient by 2020, the state will work

with the Department of Homes and Community Renewal

and other public and affordable housing agencies to

bring even higher efficiency retrofits to 100,000

multifamily housing units by 2025, cutting costs to

customers, making their homes more comfortable, and
reducing emissions from our building stock. To jumpstart progress toward this goal, the Clean Energy Fund

will invest $75 million over the next three years to help
offset the costs of efficiency upgrades in multifamily
affordable housing. These investments will include
grants and a design competition that will incentivize the

private sector to retrofit affordable housing units to the

highest energy efficiency standards, producing energy

savings of approximately 70 percent below typical

consumption.

The state will also take steps to ensure that all

new affordable housing construction is energy efficient.

To achieve this goal, HCR will modify its programs and

funding allocations to incentivize energy efficient
construction and develop mechanisms to monetize
84

future savings and incorporate into the affordable

housing financing capital structure.

Proposal: Create Clean Energy Workforce

Opportunity Program and Train 10,000 Workers by
2020
New York States clean energy sector has grown

nearly 15 percent and added more than 12,000 jobs since

2010. 70 The state has driven this growth through

investments to bring cutting edge clean energy

companies like SolarCity, 1366 Technologies and Soraa

to New York. These companies alone will generate over

6,000 new jobs. As the clean energy sector continues to

grow the state must take steps to ensure that we have
people with the right training to fill these jobs.

To train 10,000 more workers for jobs in the clean

energy sector, the Governor proposes a new $15 million

Clean Energy Workforce Opportunity Program at the

State University of New York (SUNY) that will work with

clean energy companies to develop a new job training

and certification program that will make New York a
leader in clean tech workforce development. Industry

partners identified through the Regional Economic

Development Councils and other industry associations

85

will develop the credentials and certifications that

workers need and develop and offer apprenticeships.

The Workforce Opportunity Program will allow

SUNY colleges, especially technical and community

colleges to expand their capacity to offer industry-

relevant training programs and will offer a unified,

industry recognized certification credential to SUNY

students. The Program will provide funding to train and

hire new faculty and purchase cutting-edge equipment
such as such as Electro-Mechanical and Mechatronic
simulators that will be used in new academic programs.

86

2.

EDUCATION: A LADDER
TO OPPORTUNITY

Public education is, and has always been, the

cornerstone of our democracy. Access to education, from

pre-kindergarten through college, can pave the way to

economic and social opportunities, to better jobs and

more successful lives. Our schools are the gateway to the
future for all New Yorkers.

When we invest in education, we invest in our

future as a state and nation and New York has one of

the largest educational investments in the country. 71 It is

critical that this investment provide quality educational

programs that lead to greater opportunities for every

student in the state. In his first term, Governor Cuomo

has implemented reforms and policies to increase access

to early education, supply schools with 21st century
learning technology and internet connectivity, recognize
and leverage our best teachers, and make college more

affordable. These initiatives have served to improve

access to a high-quality education from a students first

day in pre-school all the way through to success in his or
her chosen profession.

87

Building on the successes of his first term,

Governor Cuomos Education Transformation Act of

2015 and Opportunity Agenda raised the bar for the

education of every child in New York. From providing

the highest level of state aid to public schools in history,

to ensuring that all students have a prepared and

effective

educator,

by

increasing

educational

opportunities for the states youngest learners, by

beginning the transformation process of failing schools

to successful ones, and by helping to alleviate the

financial burden of the states college students, this

agenda improved educational opportunities in the state
across the board.

The Governor proposes a suite of new initiatives

for 2016 that help learners from early childhood to

college and also embraces the recommendations of the

New York Common Core Task Force that he will work to

implement over the next several years. Taken together,

these proposals will ensure that education in the State of
New York remains a national model of educational

excellence for all children.

88

PART ONE: HIGHER EDUCATION

New York currently has over 1.2 million students

enrolled in higher education programs annually across

all sectors. This includes 455,000 students enrolled in

the State University of New York (SUNY), 275,000
students enrolled at the City University of New York

(CUNY), and 532,000 students enrolled in private

colleges and universities across the state. 72

The state currently provides approximately $7

billion in total support for colleges and universities. This

includes $3.9 billion in funding for operations and
employee fringe benefits at SUNY state-operated

campuses and CUNY senior colleges, $1.2 billion in debt

service to pay for capital improvements on SUNY and
CUNY campuses, $1.1 billion

New York State

support for colleges
and universities:
approximately $7
billion.

in financial aid to students

through

the

Tuition

Assistance Program, various

scholarships

and

loan

forgiveness programs, over

$700 million in support for

community colleges and approximately $100 million for

higher education opportunity programs and aid to

89

private colleges administered by the State Education

Department. 73

Leveraging Higher Education for Economic Development

A strong higher education pipeline is the critical

component that connects our states P-12 public

education system to a New York State workforce
prepared for 21st century demands. Since 2011,

Governor

Cuomo

has

advanced

initiatives

that

modernize and streamline higher education in our state

with an eye towards economic development and

developing a modern workforce.

The Governors E2 initiative is a prime example of

this shift in focus. This new way of thinking treats

education and economic development as linked as they

clearly are in our ever-changing world. Todays

invention or development on a college campus can, and

should, generate new industries and job demands
tomorrowacross the state and across the world.
Linking Employers to the Classroom

The Governor has also focused new initiatives on

bringing industry input and needs to bear on college

program offerings across the state. The Next Generation

90

NY Job Linkage Program, first launched in 2013, realigns

community college offerings to ensure that in-demand

skills are being taught by building regional partnerships

between employers, Regional Economic Development

Councils, and community colleges. The Job Linkage

program also ties certain funds to successful outcomes,

rewarding community colleges that best prepare

students for graduation and the job market.

In a similar effort to align community college

offerings with regional needs, the Governor directed

SUNY to create regional planning councils to ensure that
the 29 community colleges outside of New York City

collaborate with employers, local government, state

agencies, nearby colleges, and other stakeholders. These
councils are setting regional academic and employment
goals, thereby better aligning program offerings to the
job needs of the region.

Making College Affordable

The Governor also rolled out several new

initiatives in 2015 that directly help current and former

students deal with financing costs of college attendance.

First, in December, the Governor formally rolled out the

Get on Your Feet Loan Forgiveness Program. For

91

students who recently graduated college in New York

and earn less than $50,000 annually, this program will

cover 100 percent of their student loan payments while

students begin their careers. In order to qualify, students

must continue to live in New York and enroll in the new

federal Pay as You Earn loan repayment program.

Finally, the Governor has created a Standardized

Financial Aid Letter for students enrolling in college in

2016-17 or thereafter. This standard letter will include

information on student access, degree completion, and

post-graduation success. It will also provide information

on total costs of attendance, total aid offered, and total

amount that will need to be repaid after graduation. As

college costs continue to rise it is critical that students
and their parents are able to compare the full cost of

attendance across different colleges and universities to

make an informed choice.

In 2016, Governor Cuomo proposes that we build

on this progress to modernize our public university

systems, align college offerings with workforce needs,

incentivize success, and expand college access to

students across the state. The Governor will also

continue to implement his E2 strategy to leverage our
higher

education

system
92

to

drive

economic

development. As part of this strategy the state has sought

to link higher education to industry and has invested in

efforts to commercialize research and technology from
our colleges and universities to bring new products to
market through programs such as the Innovation Hot
Spots/Business Incubators and START-UP NY.

Proposal: Extend the NYSUNY 2020 and NYCUNY 2020

Program
Comprising the backbone of New Yorks two

public systems of higher education, the 47 four-year

colleges and universities of State University of New York

(SUNY) and the City University of New York (CUNY)

together annually enroll 396,000 full- and part-time

degree seeking students.

The state established the public-private NYSUNY

2020 and NYCUNY 2020 Challenge Grant Program in

2011 to link the higher education system to economic

development. The program incentivizes bottom-up,

individualized, long-term economic development plans

on SUNY and CUNY campuses that include public-private
partnerships to benefit the campuses and surrounding

communities. Projects must demonstrate measureable

impact on both the academic experience of students and

lasting

economic

impact
93

through

workforce

development and research activities with the potential to

lead to commercialization. Since its inception, the

Program has provided $470 million in new capital

matching

grant

funding

through

Empire

Development to implement winning plans.

State

SUNY is applying the $305 million in award

funding it has received to date to enhance the academic

and economic impact its campuses have on the state.

Awards are being used to fund innovative programs at
both SUNY State-Operated campuses and community

colleges, modernizing the academic experience of all

New York students. Such projects include the creation of

a SUNY Manufacturing Alliance for Research and

Technology Transfer between 7 community colleges and

Morrisville State College, an engineering innovation hub
through SUNY New Paltz, and a Manufacturing and

Technology Resource Center for the North County. These

game changing awards also support projects at CUNY,
which to date, has provided $165 million in funding for a

new Science and Resilience Institute at Jamaica Bay,

Allied Health Training for Employment in the Bronx and

a New Media Jobs Incubator and Innovation Hub, among
others.

94

In 2011, Governor Cuomo established the

NYSUNY 2020 and NYCUNY 2020 program to keep

tuition increases low and predictable while providing

$470 million in additional resources to New Yorks

public colleges and universities.
NYCUNY

2020

fixed

an

NYSUNY 2020 and

unpredictable

tuition

rollercoaster that prevented students and their families

from being able to plan for the full cost of their education

and ended the days of drastic tuition spikes upward of 45

percent. After five years of predictable tuition, New

Yorks public four-year resident rates remain the lowest

in the northeast and in the lowest quartile nationally. 74

This legislation also allowed campuses to better

plan and leverage the states investments for student

success. For instance, since the enactment of this

legislation, SUNY has used the proceeds from tuition

increases to hire more than 520 net new instructional

staff (270 of whom are full-time faculty), and to establish

over 100 new degree programs in high-need fields to
ensure New Yorkers are prepared for the jobs of the

future. 75 Importantly, pursuant to legislation, SUNY and

CUNY also invested nearly 30 percent of these proceeds
to provide tuition credits to students eligible for the

Tuition Assistance Program. These new SUNY and CUNY

95

investments in a TAP Tuition Credit ensured that the

neediest students can attend college tuition-free.

To keep tuition low and predictable and infuse

additional funds into our SUNY and CUNY systems, the

Governor proposes extending the 2011 legislation for an

additional five years. Under this rational tuition

proposal, SUNY and CUNY will be able to raise tuition up

to $300 annually, provided they are able to demonstrate

considerable efforts to reduce spending and that any

increase is tied to appropriate inflationary indices.

Additional revenue generated by any tuition increase

would need to be put in a lockbox to support faculty,

improve instruction and provide tuition credits for TAP-

eligible students. A $300 annual tuition increase would

raise $89 million annually for SUNY and $51 million for

CUNY. This program will continue to provide $110

million in new capital matching grant funding through

Empire State Development for the NYSUNY 2020 and

NYCUNY 2020 Challenge Grant Program and will be

coupled with an additional projected increase of $400

million in public funding over the next five years.

96

Proposal: Expand SUNY and CUNY Performance

Initiatives
In 2013, Governor Cuomo began the process of

partially shifting funding for SUNY and CUNY from

enrollment-based funding to an approach linked to

campus performance with the initiation of the Next

Generation Jobs Linkage Program.

This innovative

program has provided $5 million annually in incentive

funding to SUNY and CUNY community colleges that help
students get jobs upon graduation.

In 2015, Governor Cuomo extended this concept

with the inception of the $30 million SUNY and CUNY

Investment and Performance Fund. Under this plan,

colleges

are

required

to

complete

performance

improvement plans subject to Board of Trustee approval.

Based on identified goals, each system allocates funds to

the colleges prioritized projects with the goal of

improving outcomes in student access, completion, and

post-graduation success.

This year, the Governor will continue both of

these performance incentive programs and proposes

that SUNY and CUNY combine campus performance
plans into a comprehensive system-wide plan.
97

Proposal: Expand Commercialization

OpportunitiesLaunch Bio-Science Venture Capital
Competition
New York universities rank second nationally in

total research spending, with over $4 billion spent

annually 76 but New York continues to lag behind

California

and

Massachusetts

in

commercializing

research and generating new economic activity. 77 New

York also has tremendous intellectual capital and

infrastructure in the bio-sciences, ranking third among
states in National Institutes of Health (NIH) research

funding at $2.1 billion in 2014. 78 In 2014, the biosciences industry represented 41,554 jobs in the state,
comprising $7.5 billion of the states overall economy. 79
To

inspire

more

startup

companies,

like

Regeneron, to start and expand in New York, the

Governor will launch the $1 million Bio-Science Venture

Capital Competition. The competition will stimulate
growth in the bio-science industry through a multi-year

venture capital contest focused on selecting the most

promising startups and providing funding to support the

commercialization of technologies developed within
New York State universities and research labs.
98

Proposal: BioElectronic Facility at Nassau Hub

To leverage Long Islands existing higher

education science and research assets, the Governor

proposes to invest $50 million to build a state-of-the-art

BioElectronic research and development facility at the

Nassau Hub, a new mixed-use retail and commercial

development project at the site of the former Nassau

Coliseum. The facility will generate cutting-edge

research that marries the disciplines of Neuroscience,

Electronics with Computing and Molecular Medicine and

commercialize the research into new medicines.

The Center will build upon the states model of

public-private partnerships for higher education-based

economic development and will be anchored by Hofstra

University, in collaboration with North Shore LIJ, the

Feinstein Institute, and Stony Brook University. The

project will leverage $300 million in private sector

investment to support 650 jobs in the region.

Proposal: Create the New York State Innovation

Database
New York now ranks second nationally in total

university R&D spending. But, under current practice,

too many new discoveries remain on the shelf in
university patent offices. To address this, New York will
99

establish a statewide database managed by Empire State

Development that will make unused university R&D

discoveries searchableconnecting discoveries with

those who can apply them commercially. This new

database will improve the tech transfer process for

public and private research institutions by making it

easy for entrepreneurs to access research discoveries

and intellectual property, incorporating them into new

companies.

Proposal: Expanding Educational and Economic

Opportunity to All by Expanding Access to Early
College and CTE Programs
Governor Cuomo recognizes that the traditional

pathway from high school to a job or college is not always

the best option for students. He has consistently

supported innovative alternate routes for students to

enter college or start a career after graduation. New

York is a national leader in the Early College High School

movement and in Career and Technical Education for

high school students.

In 2016, Governor Cuomo

proposes a three-part plan to strengthen and expand

these programs for thousands of students.

The state has more than 65 early college high

schools that currently enroll more than 7,300 students;

100

enrollment will climb to more than 15,000 students by

the 2020-2021 school year. 80 These high schools utilize

one of two models. The first is the Smart Scholars Early

College High School model, which was established in

2010 to provide students with the opportunity to earn a
minimum of 24 transferable, general education college

credits while they are in high school. There are currently

23 Smart Scholars schools in New York. The second is the
career oriented grade 9-14 Pathways to Technology

Early College (P-TECH) High School model, which was

first established in 2013 to provide students access to a

high school diploma and associate degree in one

integrated program. P-TECH High Schools also bring
businesses to the educational process and provide

students with internships and access to post-graduation

job opportunities. Both models target students from low-

income backgrounds and populations traditionally

under-represented in college. Since 2010, the state has
invested

over

programs. 81

$28

million

in

these

innovative

New Yorks Early College High Schools have been

highly successful in helping students get a jump start on

college by helping thousands of students earn college

credit while still enrolled in high school. One of the

101

strengths of the P-TECH program is that it not only

allows students to earn college credit in high school, but
also connects graduates directly to jobs. However, most

students in the Smart Scholars schools are unable to

complete an associate degree by graduation. They often

enroll in community college to complete their associate

degree, but may fail to complete an associate degree or

go on to receive a four-year degree. The Governor seeks

to ensure that Smart Scholars programs provide

participating students with an associate degree as well

as a direct link to further study and a higher-level degree.

First, the Governor proposes investing $3 million

to create the Smart Transfer Program. This new initiative

will transform certain existing Early College high schools

into Smart Transfer high schools. Smart Transfer high

schools will partner with a four-year college or

university and re-structure their academic program to

ensure that students can complete an associate degree

while in high school, at no cost to the student, and then

successfully transfer to a four-year college.

The

partnering higher education institution will provide

transfer students with cohort-based student supports

and academic advising, and will pledge that participating

students will be able to complete a bachelors degree
102

within two years of transfer. The Smart Transfer

Program will improve the high school to college pipeline

for these students by easing roadblocks to successful

transfer to, and graduation from, a four-year college or

university.

In 2014, the New York State Board of Regents

approved a Career and Technical Education pathway to

high school graduation. In this new pathway, students

enrolled in approved CTE programs could use an

approved industry standard certification exam to

replace one Regents exam in graduation requirements. 82

Second, to ensure that this pathway leads to both

college and career readiness, Governor Cuomo will

invest $1 million to support a package of reforms to the

CTE sector that will ensure access for unique student

populations as well as ensure that professionals are in

the classrooms. First, the Governor proposes that the
New York State Education Department Office of Career

and Technical Education eliminate barriers to Students

with Disabilities and English Language Learners by

requiring CTE providers such as large school districts

and Boards of Cooperative Educational Services (BOCES)

to demonstrate that all CTE programs and activities are

ADA, IDEA and Section 504 compliant and that the needs
103

of English Language Learners are met through bilingual

programs and materials where applicable and that

language instruction be integrated with content. A

successful model for this is the Integrated Basic

Education and Skills Training (I-BEST) model developed

in Washington State, which contextualizes language and
math instruction into CTE courses.

Next, the Governor proposes that CTE providers

expand their programs and engage with local workforce

development

agencies,

the

Regional

Economic

Development Councils, and the Community College

Regional Planning Councils to ensure that these new

programs align with local needs and opportunities for

additional training, and that industry partners are at the

table when additional credentials are developed or
identified.

Finally, the Governor proposes that the State

Education Department update its regulations to remove

the requirement that CTE teachers must also satisfy the

certification requirements needed for an initial teaching

license. This change will reduce the amount of time and

overly burdensome certification requirements for CTE
teachers and ensure that we have professionals with the
right skills and desire in our classrooms.
104

Proposal: Expand Community College Community

Schools
In

2015,

Governor

Cuomo

extended

the

community schools concept to five community colleges

recognizing that many times, student success is tied to

factors that are outside the college classroom itself.
Under

this

new

$2.5

million

funding

stream,

participating colleges work with community based

service providers, state and local agencies and others to

bring coordinated services inside the college walls to

meet the needs of distressed students and their families.

Interest in this program was strong, with 15 colleges

applying for five awards.

This year, Governor Cuomo will extend the work

begun last year to include three additional community

college community schools. These new programs will
address student needs such as child and elder care,

transportation, health care services, family counseling,

and employment assistance. Through this effort, more

students and their families will have the support they

need to reach their educational goals.
Proposal: Enact the DREAM Act

As the face of America changes, at no time in our

history has the meaning of the Statue of Liberty been

105

more important. No different than our forefathers and

mothers over two centuries ago, new Americans are
establishing their roots and livelihoods in New York
every day.

Currently, across our state, undocumented

immigrant students graduating from New York high

schools

uncertain
As the face of America
changes, at no time in our
history has the meaning of
the Statue of Liberty been
more important.

These

face

an

future.

students

are

unable to receive state

financial

aid,

often

making it impossible

to attend college and

prepare

for

their

chosen career. The Governor again proposes passing the

DREAM Act, which will support the advancement of

undocumented immigrants by enabling them to apply for

state college tuition assistance. This initiative continues

the state's tradition of welcoming immigrants and

honoring their contribution to our culture and economy.

106

PART TWO: PRE-KINDERGARTEN-12 EDUCATION

Over the last five years, Governor Cuomo has

maintained unprecedented support and commitment to

ensure that every child in New York State receives a high-

quality education. Under the Governors leadership, high

school graduation rates have increased, 83 the highest

number of four year old students are enrolled in prekindergarten in the

Under Governor Cuomo,

funding for public schools
is at the highest level in
history: $23.5 billion in
2015.

states history, 84 and

outstanding teachers
are recognized while

holding failing schools

and

educators

struggling
to

high

standards. The Governor has ended the educational

status quo and provided unprecedented levels of support

for public schools. Under the Governors leadership,

School Aid has increased year after year, reaching a

historic high of $23.5 billion in 2015, and the state has

supported educational innovations such as the states

282 approved charter schools 85 and 62 community

schools.

107

To build on this success, the Governor proposes

an increased level of support for schools, families and

teachers through increased school aid and the Education

Tax Credit, the removal of the barriers between schools

and the community by ensuring the transformation of

failing schools into community schools and supporting

the expansion of successful programs, such as prekindergarten.

The Governor will also continue to expand the

New York State Mentoring Program, chaired pro-bono by

Mrs. Matilda Raffa Cuomo. This critical program matches

children facing personal, economic, and social obstacles

with volunteers from businesses and organizations in all

regions of the state to encourage social and emotional

growth, to improve confidence and strength of character,

and to foster better outcomes within underserved

communities.

Finally, the Governor will continue to support

testing reduction, the development of high quality

teaching and learning standards that are periodically and

transparently reviewed by educators, stakeholder

engagement in the development and review of tests, and

flexibility for local districts to individualize curriculum
and instruction.

108

Proposal: Increase School Aid to Highest Level in

History
Last year, New York State enacted a budget that

raised funding for public school districts to the highest

level in history--$23.5 billion. That money supported

almost 700 school districts, 86 and 2.8 million students in

grades pre-kindergarten through twelve. 87 New York

State spends more per pupil than any state in the nation,

at an average of $19,818, almost double the national

average of $10,700. 88 New York is proud of its

commitment and investment in its public schools as they

continue to innovate, educate, and provide the greatest
known equalizer in historya quality education.

However, the Governor recognizes that although

many of our schools are offering a great education, the

very real issues of poverty and inequality faced by many

students are barriers to students receiving an excellent
education. Issues of hunger, homelessness, and feeling

unsafe threaten our great public schools abilities to

educate our young learners, and to prepare them with

the skills and knowledge necessary to achieve their

goals.

Our public schools are being asked and expected

to do more to prepare students for a changing world.

109

Accordingly, the Governor proposes to significantly

increase the states investment in public schoolsan
increase of $2.1 billion over two years, including a nearly
$1 billion increase this year alone. The Governors

proposal will provide operating aid increases to every

school district in the state, and will once again move
statewide education support to record levels.

Proposal: Eliminate the Gap Elimination Adjustment

This $2.1 billion school aid increase will also

allow the state to eliminate the outstanding $434 million

Gap Elimination Adjustment (GEA) over two years, as

well as provide an operating increase to every school

district in the state. The GEA was first enacted in 2009 in

order to combat the drastic world-wide financial

recession. Under Governor Cuomos leadership, the state

has been diligently working to restore the GEA for every
school district affected. The Governor proposes that over

the next two years, the GEA will be entirely eliminated

once and for all. This two-year plan to eliminate the GEA
allows school districts a predictable revenue stream to

enhance long-term financial planning and support

responsible budget practices.

110

Proposal: Establish the $100 Million Community

Schools Transformation Fund to Transform Failing
Schools
Under the Governors leadership in last years

budget, legislation was enacted to identify 144 of the

lowest performing schools in the state, 89 and the

superintendents

of

those

promoting

rapid

schools

were

given

unprecedented powers to support their efforts in

the

maximization

of

student

achievement. Schools identified as failing must show

demonstrable improvement on several indicators such

as improving student achievement and reducing chronic

absenteeism. In addition, $75 million was made available

to support the turn-around efforts in those schools
identified by the State Education Department (SED) as

being in the lowest accountability status for a decade,

identified as the persistently failing schools.
failing

This funding was made available for persistently

schools

to

employ

community

school

coordinators, for additional instruction time during and

after the school day, to reduce class sizes, and additional

staff for mathematics and literacy intervention, bilingual

programming, counselors and other staff. In addition, the
111

funding supports the transformation of these 20

persistently failing schools into community schools.

Community schools address issues of poverty by

working together with government and nonprofit

service providers to ensure that every student is

prepared, safe, healthy and ready to learn. This new

investment in community school transformation will

build on the Governors 2013 initiative that invested $30

million to develop 62 community schools in high-need

school districts. [3] Schools transforming into community

schools were allowed to use grant funds of up to
$500,000 to support activities such as the hiring of a

community school coordinator, before-and-after school

mentoring, summer learning activities, and referrals and
connections to medical, dental, and other social services.

Building on these past successes, the Governor

proposes that all failing schools be transformed into

community schools and that other high-need school

districts will be eligible to access the $100 million to

transform their schools to community schools. There are

still approximately 90,000 90 students enrolled in schools

identified as failing. These students require and deserve

immediate action. The Governor therefore proposes that

of the new $100 million for the Community Schools fund,
112

a fund of $75 million be specifically allocated amongst

the 17 school districts which currently house a failing or

persistently failing schools to support their efforts to

turn around the school through the establishment of a
community school model.

Proposal: $200 Supplies Credit for Teachers

Governor Cuomo has long supported initiatives

designed to attract and retain excellent teachers in New

York schools. Teachers work hard and support their
students, and the state should encourage and support
these teachers. In order to give back to teachers who

purchase instructional materials or other supplies for

their classrooms, the Governor proposes $10 million in

tax credits to reimburse teachers up to $200 for their
purchases of classroom materials and supplies.
Proposal: Establish an Education Tax Credit

Currently, there are over 400,000 91 children in

non-public schools in New York. To support choice and

innovation in education, Governor Cuomo proposes to

create a $150 million Education Tax Credit. Under this

proposal, taxpayers will be able to claim a tax credit for

eligible contributions to scholarship organizations and

public schools. This initiative would also support a new
113

tax credit directly to families to offset nonpublic school

tuition expenses.

Proposal: Support School Choice

All students and families should have choices

regarding what is the best school for the individual

student. In order to protect and expand school choice for

parents and students, Governor Cuomo has increased

funding for charter schools and guaranteed facility

access in New York City, while also strengthening the

Comptrollers power to audit charter schools to ensure

quality. In addition, the Governor has increased the

charter cap in New York City and increased flexibility for

charter school authorizers. Charter schools are an

important component of our school system and the

Governor will continue to encourage their development
in this budget.

Proposal: Examine Enrollment and Retention Policies

in Charter Schools
The Governor remains committed to expanding a

familys choice in education, but these choices must be

fair and equal. Schools are the center of a community,

and public schools, including charter schools, must be

designed to serve all children across that community.
114

Current law includes significant parameters and

requirements to ensure that charter schools institute fair

and transparent enrollment and retention practices.

However, over the past several years, anecdotal evidence
of troubling practices has occasionally arisen. As is true

in all areas of government, the perception of a problem

can be a problem in and of itself. Accordingly, the

Governor proposes that the state examine charter school

enrollment and retention issues in the coming year

including current law, current regulations, and current

practices and take all necessary steps to improve the

fairness and transparency of the system.

Proposal: Restoring the Trust in Education: The

Common Core Task Force
Responding to the confusion and chaos related to

past implementation of the Common Core, Governor

Cuomo appointed a 15-member Task Force to review

state standards, curriculum, and assessments. In

December 2015, the Task Force issued a 50-plus page

report and 21 recommendations based on feedback

received from parents, teachers, students, and other

education experts across 12 public engagement sessions,

as well as on over 2,000 comments and conversations

with stakeholders.

115

Likewise, we will not rest until our K-12

education system is the best in the nation. Last year we

made dramatic changes. We reduced testing, increased

parental participation and empowered local districts.

These reforms were essential because we saw parents

losing faith in the system. Roughly 20 percent of students

opted out of exams and in some districts it was as high as

90 percent. Simply put, the education system fails

without parental trust. To restore the trust we said we

would correct the State Education Departments

Common Core curriculum implementation mistakes and
testing regimen. Time has shown that this is the right

decision and we urge the State Education Department to

do it right this time and are all fully available to assist in
and monitor that effort.

After careful review, the Governor accepts all 21

recommendations of the Common Core Task Force

report. The Task Force recommendations include the

use of developmentally appropriate standards infused

with stakeholder input which will be periodically

reviewed and updated; shortening the number of test

days and test questions; increasing transparency of

assessments and assessment reports; expanding support

and development for educators to create or adapt
116

curriculum to meet the needs of individual students; and

protecting students with disabilities and English

language learners from inappropriate testing. In

addition, the task force recommended and the Regents

adopted a transitional period until 2019 during which

the results of the third through eighth grade ELA and

Math State standardized assessments will be advisory
only for individual students and teachers.
The

Governor

urges

the

State

Education

Department (SED) to implement each of these

recommendations through administrative action, while

maintaining an open and transparent dialogue with

education stakeholders across the state. Governor

Cuomo stands ready to assist in and monitor these

efforts, as it is of critical importance that we get it right

this time.

Proposal: Expand Pre-Kindergarten for Three Year

Olds
Early education is the pathway to future success.

When we in invest in our youngest New Yorkers, we

invest not only in their growth but in our own future.

Research has demonstrated that high-quality pre-

kindergarten, especially for high-need students, has one

of the greatest returns on investment of any social
117

policy. 92 Due to the Governors unwavering belief in the

importance of the investment in our youngest learners,

the state has more than doubled its annual commitment

to pre-kindergarten

Early education is the

pathway to future success.
When we invest in our
youngest New Yorkers, we
invest not only in their
growth but in our own
future.

during

Cuomos

Governor
time

in

office from 385 to

785. 93

There

are

now nearly 120,000

students served in
the

states

pre-

kindergarten

programs, many in full-day spots. 94 This has created

unprecedented access to early childhood education in

the state.

The Governor invested an additional $30 million

last year to support pre-kindergarten for 3,000

additional three year or four year olds in high-need

districts. Research has suggested that access to high-

quality early childcare education, especially in the

younger years, has substantial effects on a childs long-

term brain development. 95 However, more districts

applied for state funds to offer a program for three year

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olds than could be supported by last years funding. To

serve that need, the Governor proposes an additional
$22 million investment in pre-kindergarten for three

year olds that will support the provision of early

childhood education to an additional 2,000-2,500 three

year old students and ensure that these children will

have even earlier access to high-quality instruction

during the critical brain and language development

years, along with opportunities to build confidence and

social skills through activity and play.

Proposal: Expand Quality Monitoring and

Improvement in Pre-Kindergarten
Last year, Governor Cuomo established the first

state-level funding commitment to ensuring quality in

early childhood settings by allocating $3 million for

QUALITYstarsNY, the states tiered quality rating and

improvement system. The Governor proposes allocating
an additional $2 million to support the work of
QUALITYstarsNY to allow even more early childhood

settings to be monitored, reviewed, and given the tools

they need to succeed in providing high-quality early
education. In addition, QUALITYstarsNY also provides

necessary transparency to the system, as it gives parents

119

a clear way of understanding the quality of the education

and care received at the early childhood setting.

In the past, participation in QUALITYstarsNY has

been voluntary. However, some of the states most

vulnerable children are served in early childhood care

and education settings that may deeply benefit from

quality monitoring and improvements, and have not yet
volunteered. In order to ensure high-quality education

and care for vulnerable students, settings identified by

licensing agencies such as the Office of Children and

Family Services, the State Education Department, or the

New York City Department of Health and Mental Hygiene

as needing extra support will be required to participate

in QUALITYstarsNY as a condition of receiving state
funds.

Proposal: Extend Mayoral Control in New York City

New York City has had mayoral control over its

public school system since 2002; the authority is

currently set to expire in 2016. Governor Cuomo

supports a three-year extension of New York City

mayoral control this year. In addition, Governor Cuomo

encourages mayors of other cities across the state to

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examine whether mayoral control of schools would help

to support and enhance student achievement.
Proposal: Make Schools Safer

In an emergency situation, seconds matter. There

cannot be even momentary confusion over what to do or

who is in charge in an emergency when children are
involved.

In order to prevent this confusion, the

Governor proposes legislative changes to overhaul and

modernize the current section of law that governs school
safety plans. These changes will clarify the difference

between district and school safety plans, especially in

regard to protecting confidential information, and will

ensure that all school staff undergo mandatory annual

training on district safety and school emergency plans. In
addition, the Governor proposes that each district be

required to designate a school or district employee as

Chief Emergency Officer to ensure that there is a clear
point person responsible for all emergency coordination

and training, all communications, and all school and

district safety plan monitoring.

The Governor also proposes to modernize the

current fire drill law to replace a small number of

currently required fire drills with practice and

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preparation sessions tailored to other types of

emergency situations, such as lock-down drills. Under

current law, schools are required to hold 12 fire drills

every year to keep New York children safe. However,

New York and the nation are consistently faced with new
and evolving threats to student safety that may require a

different type of response than that required during a

fire-related emergency. Shifting the focus of some

currently required fire drills to allow for other

emergency preparation has the support of the New York

State Police, the New York Division of Homeland Security

and Emergency Services, and the New York Safe Schools

Task Force.

Finally, the Governor proposes that SED be

authorized to administratively forgive a school day

shortfall when a school closes in an emergency situation

after a credible threat to student safety. Under Education

Law, in order to receive the full amount of State Aid,

school districts must operate for 180 school days. 96 In

recent years, school districts have had to petition the

legislature for specific acts of legislation to initiate aid

forgiveness for instances when a school had to close its

doors late in the school year under the advisement of law

enforcement professionals. We must enable school
122

district personnel to make decisions that protect

students safety without putting state aid to school
districts in jeopardy, and the Governors proposal would

ensure that safety is the first and only consideration in

any emergency.

123

124

3.

PRESERVING OUR
ENVIRONMENT AND
OPEN SPACE

New York is home to remarkable environmental

assets; from the forty six peaks of the Adirondacks, to the

shores of Lake Erie and Lake Ontario, to the rolling hills

of the Finger Lakes and Susquehanna Basin, to the

Mohawk River corridor through the Hudson Valley and
the Catskills, to New York Harbor and Long Island. No
other state in the nation can compete with New Yorks
natural resources.

Over his first five years in office, Governor Cuomo

has dedicated historic levels of investment to protect,

expand and enhance the states unparalleled air, land and
water resources. Since taking office in 2011, Governor

Cuomo has worked in partnership with the State

Legislature to provide unprecedented capital funding to

State Parks, water and wastewater infrastructure and

land preservation while also restoring funding to the

Environmental Protection Fund (EPF). Early in his

tenure, Governor Cuomo signed power plant siting

125

legislation that had been stalled for years that ensures no

new coal fired power plants will be constructed in New
York State. Governor Cuomo also leveraged the success

of his Regional Economic Development Councils by

investing $100 million dollars in the states multi-year
Cleaner, Greener Communities Program to develop

regional sustainability planning and implement projects

that drive investments in renewable energy, smart
growth, and local parks and trails systems.

In 2014, at the direction of Department of

Environmental Conservation (DEC) Commissioner Joe

Martens and Department of Health Commissioner Dr.

Howard Zucker, New York State announced a ban on

high-volume hydraulic fracking of natural gas. The
Governor has also prioritized reducing the states carbon
footprint while also adapting our response efforts and

infrastructure to better withstand severe weather like

Hurricane Irene, Tropical Storm Lee, Superstorm Sandy,

and the 2014 Buffalo snow storm that brought eight feet
of snow to southern Erie County. The State Energy Plan,

issued in 2015, helps to further these goals through a

focus on reducing carbon emissions by 40 percent below

1990 levels by 2030 and ensuring that 50 percent of the

energy used by New Yorkers come from renewable
126

resources by the same date. The State Energy Plan

reinforces and builds upon ongoing work to Reform the

States Energy Vision (REV) and develop a 21st century

power grid.

In December, Governor Cuomo reinforced his

commitment to the goals outlined in the State Energy

Plan and directed the Department of Public Service to

advance a proceeding before the Public Service

Commission to mandate that 50 percent of the states

energy come from renewable sources by 2030. This

mandate will ensure that New York achieves its

aggressive emissions

reduction goal and

Over his first five years in
office, Governor Cuomo has
dedicated historic levels of
investment to protect,
expand and enhance the
states unparalleled air,
land and water resources.

will drive billions of

dollars of investment

into the states clean

energy economy as

companies

develop

new technologies and

install new sources of
renewable energy.

In 2016, Governor Cuomo is committed to build

on previous environmental accomplishments with

historic investments in the states parks, recreation, and

127

tourism assets and increased funding for the states

program that supports critical water infrastructure

improvements. The Governor will also advance a

renewed and aggressive environmental justice agenda.

Proposal: Increase the Environmental Protection

Fund to $300 Million

When Governor Cuomo took office in 2011, the

States Environmental Protection Fund (EPF) stood at

$134 million, nearly 50 percent lower than its historic

high of $255 million in 2008. Over the past five years the

Governor has worked tirelessly to restrain government

spending and maintain fiscal discipline while restoring

EPF funding to its current level of $177 million. To

provide increased funding for investments in land

acquisition, farmland protection, invasive species

prevention and eradication, waterfront revitalization,
and environmental justice programming the Governor

proposes an unprecedented and historic $300 million

investment in the EPF. This long aspired, yet never

achieved funding milestone will set a new benchmark for

environmental protection in New York State, one that
Governor Cuomo is committed to preserving throughout
his tenure and beyond.

128

Year

State EPF Allocation

2011-12

$134M

2013-14

$153M

2012-13
2014-15
2015-16
2016-17

$134M
$162M
$177M
$300M

In addition to expanding investment in existing

EPF funding categories, the Governor proposes the

creation of a new Climate Change Mitigation and

Adaption category in the EPF. Climate change is a

generational and existential problem that requires

billions of dollars of investment to limit and reduce the
severe impacts of sea level rise and extreme weather.

While the state has made strides in reducing greenhouse

gas emissions from the power sector through the multi-

state Regional Greenhouse Gas Initiative (RGGI), new

EPF funding will support the states aggressive efforts to

reduce emissions from sources not included within the

RGGI platform, including landfills, water treatment

facilities, and commercial buildings. Funds in the

129

proposed Climate Change Mitigation and Adaption

category will support investments in priority projects

that address sea level rise, enhance resiliency against

extreme weather, and increase flood mitigation and

coastal protection.

Proposal: Make New York Coal Free By 2020

Coal is one of the highest greenhouse gas emitting

and environmentally harmful fuel sources for power

generation. While coal supplied the bulk of our energy

needs up until the 1950s, 97 the nation now enjoys access
to cleaner, greener and more sustainable energy

resources for power production. In fact, today, New York

State has only three active coal fired power plants that
produce less than 4 percent of the states energy load and
one plant is scheduled for closure in 2016.

To achieve the states goal of reducing carbon

dioxide emissions from the energy sector 40 percent by

2030 the Governor seeks to close or repower the two

remaining coal burning power plants to natural gas by

2020. To accomplish this goal, the Governor will direct
the Department of Public Service and the DEC to work
with the New York Independent System Operator to

develop a regulatory framework that will ensure system

130

reliability while facilitating repowering to cleaner fuel or

closure no later than 2020.

To minimize economic impact on communities

and workers the Governor will draw upon the states

existing $19 million mitigation fund to offset financial

losses associated with the retirement of aging or

obsolete power plants. Governor Cuomo is committed to

working with plant owners and host communities to

achieve his objective in a manner that will preserve jobs
or retrain current employees for new jobs in New Yorks

clean energy economy and provide tax revenue

stabilization assistance to local governments and school
districts.

Proposal: Advance $7 Million for Environmental

Justice Programming
Minority and low-income communities are too

often disproportionately impacted by air pollution,

contamination from power plants, landfills, and former

industrial sites as well as harmful emissions from high

volumes of automobile traffic. The state has already

invested $3 million in 89 different environmental justice

focused initiatives through the DECs Office of
Environmental Justice. Moreover, Governor Cuomos

Parks 2020 initiative includes $42 million in state

131

funding and $45 million in Sandy recovery funds to

enhance Riverbank and Roberto Clemente State Parks,

which together serve more than 4 million visitors, many

of whom live in underserved and low income
neighborhoods in Harlem and the Bronx.

This year, Governor Cuomo will launch a

statewide environmental equity and justice framework

that reaches beyond DECs current program. This

framework will ensure that all state agencies align their

operations with environmental justice and equity
principles, simultaneously addressing a broad range of

issues affecting the health, economic, and social stability

of low-income and minority communities, which are
disproportionately impacted by environmental burdens.

To further advance the states environmental

justice priorities, the Governor proposes $7 million in

funding from the Environmental Protection Fund to

expand environmental justice programming. This

investment will double the states environmental justice
grant program and provide direct funding for improved
air

quality

monitoring,

citizen

science,

outdoor

recreational access and education and outreach efforts

designed to improve the environmental and public

health of disproportionately impacted communities.

132

Through these efforts, the state will build upon regional

and local initiatives, and ensure meaningful involvement

from community leaders in environmental decision

making.

The EPF will also provide inner-city and

underserved communities with a record $10 million for

waterfront revitalization planning and projects as well as

$10 million for municipal park improvements.

Proposal: Increase Water Infrastructure Investment

Act of 2015 to $300 Million
To

protect

New

Yorks

water

resources,

community health, and prospects for future economic

growth the state must rehabilitate and modernize our

aging drinking water and wastewater infrastructure.

Last year, Governor Cuomo joined with the State

Legislature

to

enact

the

Water

Infrastructure

Improvement Act (WIIA) of 2015 that provides $200

million over three fiscal years to fund critical water and

wastewater

system improvements.

In

2015

the

Environmental Facilities Corporation awarded the first

$50 million from WIIA to forty five water and

wastewater infrastructure projects across the state. This
$50 million investment, when combined with low

interest loans from existing state revolving loan funds,

133

leveraged

more

than

$440

million

in

water

infrastructure projects that saved New York taxpayers

$200 million in avoided municipal debt service.

Due to the early success of this effort and the

oversubscription of the first round of WIIA funding,

Governor

Cuomo

proposes an increase of

$100 million under the

Water

Infrastructure

Improvement Act that

will bring total funding

to $300 million. These

additional funds will

allow the state to issue

an

additional

Governor Cuomo proposes

an increase of
$100 million under the
Water Infrastructure
Improvement Act that will
bring total funding to
$300 million.

$250

million in grants to municipalities over the next two

years that will leverage more than $1.5 billion in local

water infrastructure

estimated 24,000 jobs. 98

investments and create an

Proposal: Accelerate $500 Million Nitrogen Pollution

Prevention Program on Long Island
Nitrogen pollution is one of Long Islands most

pressing environmental challenges. Excess nitrogen in

waterways severely impacts water quality, degrades
134

critical ecosystems, threatens public health, harms vital

and protective coastal wetlands and hinders marine

economies. 99

Investing

in

both traditional and

green infrastructure to control and treat wastewater and

stormwater runoff will help keep nitrogen out of our
waterways.

The state has taken a series of steps to reduce

nitrogen

levels

on

Long

Island,

including

transformative $388 million initiative to connect nearly

10,000 Suffolk County households to modern sewer

systems and treatment plants and $3.9 million in grants

to seven targeted projects aimed at reducing nitrogen

pollution in the Peconic Estuary watershed. In Nassau

County, the state is investing more than $190 million to

advance an effluent outfall pipe at the Bay Park

wastewater treatment plant, a long overdue project that

will ensure Long Islands Western Bays are free from
harmful nutrients.

To build on the success of these combined efforts,

the Governor proposes an additional $10 million

investment to support wastewater and stormwater

projects in Nassau and Suffolk counties through the

EPFs Water Quality Improvement Program.
135

Proposal: Invest $9 Million to Build Advanced Zero

Emission Vehicle Charging Stations
New Yorks transportation sector accounts for

approximately one-third of the states greenhouse gas

emissions. 100 In order to achieve significant reductions
from this sector, the state has invested heavily to remove

barriers that hinder widespread consumer adoption of

zero emission vehicles.
When the Governor
New York has increased
the number of electric
vehicle charging stations
from fewer than a dozen in
2009 to over 1,200 today.

took office in 2011,

there were only 500
electric vehicles on the
road

compared

to

14,000 today. 101 New

York has increased the

number of electric vehicle charging stations from fewer

than a dozen in 2009 to over 1,200 today. 102

In order to further increase the number of zero

emission vehicles on our roads, New York State Energy

Research and Development Authority (NYSERDA) will
invest an additional $9 million in the states Charge NY

program. This investment will help to build up to 800

additional charging stations around the state. In 2016,

the New York Power Authority and the Thruway

136

Authority will also unveil the states first high speed

electric car charging stations on the Thruway at rest

areas between New York City to Albany that will provide

a full charge in just 30 minutes to facilitate long-distance
travel.

Proposal: Reduce Organic Waste to Lower Methane

Emissions
Getting food from the farm to our dinner tables is

an expensive, resource intensive processyet 40

percent of food produced in the United States today goes

uneaten. 103 Much of that organic waste is disposed of in

municipal landfills and its decomposition accounts for

over 15 percent of our nations methane emissions. 104

Methane is a greenhouse gas that has twelve times the

atmospheric impact of carbon dioxide. 105 Meanwhile, an

estimated 2.8 million New Yorkers are facing hunger and
food insecurity. 106
To

address

this

dual

social

justice

and

environmental challenge, the Governor will work with

the legislature in 2016 to pass a bill requiring large

generators of food waste to donate edible food and

compost or recycle what is not donated. This legislation

will require New Yorks 1,200 large food waste

generators, such as grocery stores, colleges, hospitals,

137

and restaurants to donate or recycle the estimated

275,000 tons of food waste annually. 107 This will help to

reduce the amount of organic waste sent to landfills and

reduce methane emissions while ensuring that hungry

New Yorkers have improved access to quality food. The

state will phase in implementation of any program over

several years to allow for the state-supported

development of food donation programs and recycling

infrastructure. This sequencing will ensure excess food

is donated to feed hungry New Yorkers, used to generate

energy, repurposed as animal feed, or composted.

These efforts will dovetail with the states $40

million investment in waste-to-energy infrastructure

and the expanded food waste audit program at the New

York State Pollution Prevention Institute that takes

inventory of operations at large generators to identify

opportunities to reduce waste and increase recycling.

Proposal: Invest $125 Million to Rebuild State Parks

Governor

Cuomo

has

made

historic

commitments to improve and expand access to

recreational opportunities in New Yorks State Parks. In

2015, the Governor launched NY Parks 2020, a multi-

year commitment to leverage $900 million in funding for

138

State Parks improvements. To date, these funds have

supported more than 225 projects to revitalize and

rejuvenate more than 130 State Parks and Historic Sites.
In 2016 the Governor will formally open the Thacher

Park Visitors Center and Letchworth State Park Nature

Center, start construction of the Cave of the Winds

experience at Niagara Falls State Park and complete

recreational enhancements at Buffalo Harbor State

ParkNew Yorks newest state park.

This year, the Governor proposes $90 million to

further this initiative added to an additional $80 million

investment of storm recovery resources in our State

Parks. In 2016 the Office of Parks Recreation and Historic

Preservation (OPRHP) will continue to debut new

gateways

and

restore

long-treasured

flagships

throughout the state with a focus on investments on

Long Island. In 2016, OPRHP will increase its overall

investment in Long Island Park facilities to $182.5

million, including $54.5 million in new investments. This

new investment includes a $34.5 million investment at

Hempstead Lake State Park and an $18 million project to

build the Jones Beach Marketplace that will provide a
variety of food and beverage offeringsincluding
healthy, local Taste NY options.
139

Last April, Governor Cuomo announced that

Robert Moses State Park will become the first energy-

neutral state park in the nationthis month, the state

will break ground on the construction of a 500 kilowatt

solar project to achieve that goal. State Parks will further

advance this initiative with the construction of up to 5

additional megawatts of solar at Jones Beach, Sunken

Meadow State Parks, and Robert Moses State Park. These
solar investments will generate approximately fifty

percent of the electricity demand for Long Island State

Parks and result in the reduction of nearly 5,000 metric
tons of CO2 emissions per year.

Proposal: Launch Connect Kids Parks Access

Program and Provide Free Parks Entry for 220,000
Fourth Graders
Sixty two million New Yorkers visited the State

Park system in 2015, an eight percent increase from

2011. 108 Despite record breaking attendance, many of

New Yorks most vulnerable populations, including

children who live below the poverty line, lack sufficient

access to outdoor recreational assets. This year, as a
component of the states enhanced Environmental
Justice programming, Governor Cuomo will launch the

Connect Kids program, a partnership between State

140

Parks

and

the

Departments

of

Environmental

Conservation and Health that will provide direct grants

to school districts through the Environmental Protection

Funds Environmental Justice Program to cover the costs

of transporting 4,000 school children to State Parks.

In 2016, New York State will also partner with the

National Park Service to extend free entry to State Parks

for all 220,000 fourth grade students and their families
in 2016.

141

142

4.

PUBLIC SAFETY

Recent terrorist attacks in Paris, France, and San

Bernardino, California, as well as the arrest of a

Rochester man attempting to support the Islamic State

(ISIL), are tragic reminders of global terrorism. These

attacks have revealed a trend toward coordinated,

homegrown assaults that, in the 21st century, can be

exacerbated by social media and networked technology.

Cyber-crime and cyber-terrorism are an increasingly

common threat to the personal and financial safety of

New Yorks citizens, government, and businesses. This

new normal of domestic terrorism and cyber-crime

require an expanded approach to the states counter

terrorism efforts.

Under Governor Cuomos leadership, the state

has worked closely with federal and other state officials

to implement new strategies to protect New York from

emerging threats. In 2015, the Governor called on the

federal government to prevent known or suspected

terrorists from purchasing guns in New York State. The
Governor also directed state agencies, including the

Division of Homeland Security and Emergency Services

143

(DHSES), the New York State Police, the National Guard,

the MTA, and the Port Authority of New York and New
Jersey to identify threats and deploy enhanced security
measures to detect and deter acts of terrorism. To curtail
the financing of worldwide criminal and terrorist

networks, the Governor also proposed new antiterrorism and anti-money laundering regulations to
prevent illicit transactions.
would

In 2015, the Governor announced that New York

create

the

first-in-the-nation

College

of

Emergency Preparedness, Homeland Security and

Cybersecurity at the University at Albany-SUNY to train
the next generation of emergency managers and security

professionals. The state also launched NY Responds, a

comprehensive response to emergency situations and

disasters. DHSES has completed the first phase of NY
Responds and phase two of is underway to deliver

additional upgrades to the incident management system.

The Governor has also initiated important

measures to ensure that New York remains at the

forefront of combating cyber security threats. In 2013,

the Governor created the states first Cyber Security

Advisory Board, consisting of several of the countrys

foremost cyber security experts. Since its creation, the

144

Board has advised the Governor on developments in

cyber security and has provided recommendations to

protect the states critical infrastructure and information
systems. In 2014, the New York State Police established
the Cyber Analysis Unit at the New York State
Intelligence Center to monitor cyber threats and collect

and disseminate vital intelligence on these threats. The

Cyber Analysis Unit is fully staffed with expertly trained

cyber security professionals and will provide timely,

sector specific intelligence reports to law enforcement,

private businesses, and government entities.

To help businesses develop the tools they need to

defend against cyber intrusions the Governor has

directed the Department of Financial Services to join

with their regulatory partners on the state and federal

level, and with representatives from the financial

services industry, to establish concrete industry

standards for the protections of consumers personal

information and critical economic data. The Cyber
Security Advisory Board is also partnering with the
Department of State to develop a comprehensive

program of public talks, public service announcements,

and online informational resources to educate New
145

Yorks citizens and businesses on the cyber security

threats they face and how they can protect themselves.

While these initiatives will go far to protect New

Yorks citizens, the state must do more to combat everevolving, complex threats and prevent future attacks.
Proposal: Establish Permanent Statewide Law
Enforcement Presence to Combat Terrorism

Understanding the need for increased protection

of its citizens in the wake of heightened terrorist threats,

the Governor initiated a counterterrorism surge in the

New York City metro area in 2014 that provided an
increased State Police, MTA Police, and National Guard

presence. The state also launched the See Something,

Send Something mobile application in 2015 that allows
New Yorkers to report suspicious activity.

To protect against the increased threat to transit

hubs and critical infrastructure, the state will establish a

permanent State Police presence in New York City. These

specially-trained, uniformed State Troopers will partner

with dozens of investigators to strengthen the law
enforcement presence in and around New York City.

Moreover, the Governor has called for a total investment

of $40 million, which will expand the current surge to
critical infrastructure throughout the state.
146

Proposal: Consolidate the Office of Counter Terrorism

with the State Police
In 2015, the Governor announced that former

New York City Police Department Commissioner Ray

Kelly would conduct an in depth assessment of the states

existing counterterrorism preparedness and prevention

efforts. Commissioner Kelly has proposed a preliminary

recommendation for the state to consolidate the

operational components of the Office of Counter

Terrorism in DHSES within the New York State Polices
Office of Counter Terrorism. This shift will increase the

efficiency of the states counterterrorism functions by

consolidating all intelligence and analysis resources
within the New York State Intelligence Center, under the

singular command of the New York State Police. The

enhanced unit will monitor all known threats and

identify emerging targets using the latest technology and
techniques. This effort will continue to support federal,

state, local, tribal, and private sector efforts to prevent,

protect against and prepare for acts and threats of

terrorism. 109

147

Proposal: Provide Enhanced Training and Equipment

to State Troopers
Recent terror attacks have revealed a trend

towards coordinated strikes using military-style assault

weapons, as well as home-grown extremists committing

lone-wolf attacks. These attacks are easier to carry out

on American soil and can occur anywhere within New

York State. 110 This new normal of terrorism requires an

expanded approach to the states counterterrorism

efforts.

The Governor will invest $4 million to prepare

New York State Troopers to respond to this emerging

threat, both in New York City and throughout the state.

This investment will provide rifles, body armor, and

ballistic helmets to all on-duty uniformed troopers, along

with the necessary training to prepare them to respond

to this evolving threat of terrorism.

Proposal: Close the Terror Gap

We know that terrorists are within our borders

and we know that they can and do purchase firearms

from licensed and presumably law abiding firearms

dealers. In fact, a study by the federal government

concluded that 91 percent of firearm and explosives

purchases attempted by individuals on the terror watch

148

list were permitted to proceed. 111 Yet our federal gun

laws do not currently enable states to prevent the sale of

weapons to potential terrorists. It is reckless and

irresponsible not to share information about possible

terrorists within our borders.
Today,

states

cannot

use

the

federal

governments Terror Watch List to determine who may

be licensed to own or permitted to buy a firearm and

Washington D.C. cant agree on the use of intelligence
information concerning terrorists in gun background

checks. The Governor calls upon the federal government

to officially add the U.S. Terror Watch List to the criteria

it uses for federal background checks in New York

State. This would prevent known or suspected terrorists

from legally purchasing guns and would cross-check the

terror watch list with a National Instant Criminal

Background Check System request, effectively closing
the terror gap within the state and barring individuals on
federal

terror

themselves.

watch

lists

from

legally

arming

Proposal: Protect Critical Infrastructure through

Targeted Security Assessments
The Critical Infrastructure Protection Unit

coordinates the protection of the states most vital assets.

149

The Unit partners with both public and private sectors to

conduct assessments of critical infrastructure and key

resources, such as power plants and transportation hubs.

These

assessments help

local governments

and

businesses develop comprehensive protection strategies

against evolving threats.

In light of the attacks in Paris and San Bernardino,

as well as the recent revelation that the command center

of a dam within New York State was hacked 112, the

Governor will direct the Unit to expand the number of

annual security assessments and response exercises and

ensure they occur in all areas of the state, including rural

and suburban locations. These assessments will not only

reveal potential weaknesses and help prevent attacks,

they will also teach us how to respond and mitigate any

damage in the unlikely event of a successful attack. The
Governor proposes to invest $1.3 million to fund these

assessments and exercises to reduce the states

vulnerability to terrorism by strengthening readiness

and response.

Proposal: Establish Best-Practice Industry Standards

to Prevent Against Cyber Attacks
It is estimated that cyber-crime costs the global

economy over $445 billion dollars annually and that data

150

breaches alone resulted in losses of over $1.3 billion to

New York businesses. Understanding the importance of
developing cyber security standards within New Yorks

vital industry sectors, the Governor will direct the Cyber

Security

It is estimated that cyber-crime

costs the global economy over
$445 billion dollars annually.

Advisory Board
to

develop

cyber

analysis

industry-specific

and

protection

consortiums comprised of representatives from across

the state. These consortiums will serve as distribution

hubs for industry-specific cyber security intelligence,

and provide a forum where small and large businesses

alike can exchange information on cyber threats,

vulnerabilities, and available resources to better

respond to cyber incidents. In the coming months, the
state will engage with an array of private industry

leaders to develop cyber security best practices,

intelligence on cyber threats, and analytic and recovery

support to minimize the damage cyber-security breaches

cause. By providing the tools and a forum for

collaboration, the state can help promote economic

151

growth and confront a vulnerability that affects all

businesses.

Proposal: Create the Cybersecurity Research

Scholarship to Train the Next Generation of Security
Analysts
New York is home to some of the worlds leading

businesses and public-sector organizations. Our reliance

on networked technologies makes it critical for the state

to do all it can to protect its infrastructure from pervasive
cyber threats. 113 The cyber security sector is growing and

the nations first College of Emergency Preparedness,

Homeland Security, and Cybersecurity located at the

University at Albany, as well as the cyber security

programs at other SUNY institutions, are well positioned

to help meet this workforce demand. 114 To ensure that

we are training the next generation of cyber security

professionals,

the

Governor

will

create

new

Scholarship Program for Analysis and Research in

Cybersecurity (SPARC) to provide full tuition support for

students seeking degrees in the field of cyber security at

any SUNY institution. The program will provide fifty

eligible students with a full tuition scholarship toward a

relevant degree in exchange for an equivalent number of

152

years of employment in a cyber security position in New

Yorks state or local governments. This scholarship

builds upon the Governors continued commitment to

provide the talent and tools needed to protect the state's

cyber infrastructure.

153

154

5.

SOCIAL JUSTICE

As Franklin Delano Roosevelt said, The test of

our progress is not whether we add more to the

abundance of those who have much; it is whether we

provide enough for those who have too little. Since

taking office, Governor Cuomo has been a steadfast

advocate for the most vulnerable New Yorkers.

New York State is fueled by the hard work and

contributions of its diverse residentsfrom upstate

farmers to downstate urbanites, from generations-old

families to those brand new to our countrys shores. We

live and grow as one, operating according to Americas

motto, E Pluribus Unum, "out of many, one." By lifting
each other up, we fortify the fabric of our communities.

Since his first term in office, Governor Cuomo has

worked to empower all New Yorkers by dismantling

barriers to economic mobility. He has increased public

assistance grants, expanded the reach of community-

driven support networks that provide basic supports like

food and shelter, empaneled an anti-poverty task force,
advanced job-creating tax credits, and leveraged the

power of philanthropy to promote job creation. Each

155

step has struck down impediments to individual success,

and made economic mobility possible for all New
Yorkers.

Governor Cuomo will continue to promote

reforms

that

help

working

families

achieve

independence, security, and prosperity. He will create a

more integrated approach to public assistance programs

to improve access to food, shelter, and employment. He

will build stronger relationships with business, public,
and nonprofit community partners and encourage

coordination between state and local anti-poverty

efforts. The Governor will also fight for essential

protections for hardworking New Yorkers to ensure
equality of opportunity for all those who strive for a

better future. Through these existing and new initiatives,

the Governor will help all New Yorkers maximize their
personal economic potential, and enjoy safe and healthy
communities.

PART ONE: HUMAN SERVICES AND POVERTY

Since

taking office, Governor Cuomo

has

undertaken proactive initiatives to combat hunger and

poverty. He increased public assistance grants in 2012

by 10 percent, fulfilling the final phase of a multi-year

156

commitment to increase aid to needy New Yorkers. To

maximize the impact of these investments, the Governor

also created a new Cabinet-level position of Interagency
Coordinator for Nonprofit Services to improve how the

state and nonprofit agencies that deliver human services

to needy New Yorkers work together. The Governor also

approved a new Nonprofit Unit at the Department of

Budget to address nonprofit issues.

The Administration launched a new Grants

Gateway, the states portal through which nonprofits

apply for grants and contracts. Once fully implemented,

the Grants Gateway will cut the length of time from point
of award to contract execution by up to two months. 115

To further support the work of the states

nonprofit partners, the Governor created a $50 million

Nonprofit Infrastructure Capital Investment Program to

make targeted investments in capital projects that will

improve the quality, efficiency, accessibility, and reach of

human services organizations serving New Yorkers.

Applications are due at the end of January, with awards
scheduled to be announced in the spring.

The Governor also created a new Office of Faith-

Based Community Development Services, headed by

former Assemblyman Karim Camara, to leverage and

157

assist community and faith-based organizations in the

delivery of education, health, workforce training, food

programs

and

social

services

to

communities,

particularly those most in need. The new Office, in

partnership with Homes and Community Renewal,

hosted a first-ever series of Housing, Community, and
Faith-Based Development Conferences to empower

nonprofit organizations to partner with New York State

to meet their communities needs. Sessions in Utica and

in Rochester drew hundreds of local organizations;
additional regional conferences are planned for 2016.
Putting

the

states

strength

behind

an

unprecedented effort at the community level, Governor

Cuomo appointed the Rochester Anti-Poverty Task Force

in 2015 to work with local public, business, and civic

leaders to end poverty in Rochester and Monroe County.
More than 20 state agencies are leveraging resources to

build a comprehensive, integrated support system that

empowers impoverished families to succeed. The

regions success in the Upstate Revitalization Initiative

led to a five-year, $500 million state investment that will
increase prosperity through economic growth.

In 2015, Governor Cuomo signed into law

important reforms creating a new conciliation process

158

in New York City whereby a person on public assistance

will have an opportunity to re-engage with their work

requirements before being subject to debilitating

sanctions. Under the previous system, New York City
residents on public assistance who missed as little as a

single day of work faced automatic suspensions of

benefits for six months as part of a sanctions process.
The system also included auto-posting whereby a

recipient was sent a computer-generated sanction,

without any human review as to whether the sanction

being imposed was warranted. This system is now in the
past.

Governor Cuomo has made it a priority for state

agencies to operate more efficiently, and New York has

had tremendous success utilizing technology to improve

citizen services. Last year, the state set out to

significantly expand upon the success of the New York
State of Health insurance marketplace which has

enrolled more than 2.7 million New Yorkers in coverage

by creating a simple, seamless no wrong door system

for health and human services programs. The state is
working to implement an Integrated Eligibility System

(IES) by 2018. Leveraging significant federal funding, the

IES will be a flexible, statewide solution that improves

159

coordination among programs, reduces costs, and

increases efficiency. The IES will enable service

providers to view real-time data in a single place,

ensuring that programs and services are tailored to suit

individual needs.

In 2015, Governor Cuomo signed into law

important reforms creating a new conciliation
process in New York City whereby a person on
public assistance will have an opportunity to
re-engage with their work requirements before
being subject to debilitating sanctions.

Continued Support for At Risk Families and Children

Governor Cuomo has shown ongoing support

for programs for low-income families, such as home

visiting, through the continued funding of Healthy

Families NY (HFNY), via the Office of Children and Family

Services

(OCFS),

as

well

as

the

Nurse-Family

Partnership, via the Department of Health (DOH). These

evidence-based
outcomes

in

programs

the

have

communities
160

shown

where

positive

they

are

implemented, including improved mother and child

health, reductions in poverty status, and improved

academic outcomes for children. 116 HFNY focuses on the

safety of children by supporting families in targeted high

risk communities. Services include educating families on

parenting and child development; connecting families

with medical providers for prenatal/well-baby visits and

immunizations; assessing children for development
delays; and helping families access community referral

resources and services. Positive evaluation outcomes for

HFNY include:

A 48% reduction in low birth weight

deliveries among women who enrolled
before the 31st week of pregnancy;
Children were 70% more likely to score
above grade level in first grade on three
behaviors that promote learning,
HFNY children are 2.7 times more likely to be
participating in a gifted program by age 7.

OCFS currently funds 36 HFNY programs across

the state with an average of 5,600 families receiving

services

on

an

annual

basis. New

York will continue its support of these critical home

visiting programs, and work to ensure connection in

those cities participating in the expanded anti-poverty
161

initiative,

expanded

Pre-kindergarten,

and

additional community schools initiative to maximize the

state's support for at-risk families.

Important work remains. Too many New Yorkers

have yet to participate fully in the economic prosperity

spreading across the state. Still too often, the

investments we make dont accomplish everything they
should, and the design of public assistance programs

often have unintended consequences and introduce new

barriers to self-sufficiency rather than reward success.
We need a more integrated approach to better support
working families on their path to independence.

Proposal: Expand MWBE Goals to State-Funded

Contracts
Since taking office in 2011, Governor Cuomo has

transformed the States Minority and Women-owned

Business Enterprise (MWBE) Program. In 2014, the

Governor increased the MWBE goal for state contracting

from 20 to 30 percentthe highest in the nation. Since
2011, state-certified MWBEs have won more than $6.3
billion in state contracts and the state has certified more
than 4,300 MWBEs and re-certified more than 3,600

MWBEs. In the last two years alone, the state has

certified over 2,000 MWBEs.

162

In order to continue building on this promise,

Governor Cuomo will propose legislation during the

2016 session that will expand the MWBE Program to

more contracts entirely funded by the state. Under

current state law, MWBE goals only apply to state-

funded contracts issued by state agencies and

authorities, but do not attach to contracts issued by

localities and other entities which are funded by the

state. The legislation will require MWBE goals on state
funds used for contracting purposes on the local level.

This will leverage the largest pool of state funding in

history to combat systemic discrimination and create
new opportunities for MWBE participation. In doing so,
the state will further its goal to help minority and women

business owners overcome entrenched barriers to

success.

Proposal: Create the $25 Million Empire State

Poverty Reduction Initiative
Despite historic economic progress in New York

State, pockets of concentrated poverty persist and

require integrated solutions that address employment,
housing, health and other issues. The statewide poverty
rate is 15.9 percent but communities such as Buffalo,

Schenectady, Jamestown, and Utica have poverty rates as

163

high as 31 percent. This year, the Governor is launching

the Empire State Poverty Reduction Initiative (ESPRI), a

new initiative that will provide $5 million in operating

aid and a pool of $20 million in capital funding to assist
10 high-poverty communities around the state to create
and implement comprehensive plans to reduce poverty.

ESPRI is modeled on the states Rochester Anti-

Poverty Task Force, which is adding the states power

behind a broad coalition of local government, business

and nonprofit representatives who are redesigning and

coordinating efforts to address extreme poverty in the

Rochester area. ESPRI will replicate this model around

the state by providing $500,000 planning and

implementation grants to communities along with access
to a grant pool of $20 million that will make targeted

investments in capital projects that improve the quality,

efficiency and reach of services that address poverty, and

state agency assistance to communities with high rates
of poverty. Communities will partner with nonprofit
organizations and government stakeholders to:

Identify specific, measurable objectives to improve

residents well-being and quality of life;
Better align public and private resources with
community-based interventions that are successful
in improving outcomes for residents;
164

Develop strategies that match promising practices to

the unique challenges of each particular community;
Build partnerships among public and private,
municipal and community-level organizations to
provide a continuum of solutions.
Each selected community will launch its planning

process with a needs assessment and evaluation of

existing plans and priorities, and strategic objectives.

The state will provide access to a dedicated team of state

agency officials who will partner with the community to

provide data, review various program models that

address the communitys priority needs, help develop

proposals or applications for state funding based on

needs and opportunities, and structure a framework to

evaluate effectiveness of interventions. Each community

will receive an implementation grant to launch programs

to reduce poverty and grants from the $20 million capital

fund for essential infrastructure investments to improve
service delivery.

ESPRI will focus on using existing resources more

effectively and purposely to end poverty, strengthen

relationships between the business, public and nonprofit

sectors in each community, and ensure coordination
between state and local efforts to fight poverty.
165

The Empire State Poverty Reduction Initiative

(ESPRI) will provide $5 million in operating aid
and a pool of $20 million in capital funding to
assist ten high-poverty communities to create and
implement comprehensive plans to reduce poverty.

Proposal: Improve Transportation Access to Work

Lack of transportation is a major barrier to

employment for low-income households, particularly

those with children. Lower-income workers in many

urban and suburban areas can only access 22 percent of

the jobs for which they may be qualified, according to the

Brookings Institution. 117 The challenge is even greater

in

rural

and

other

areas

with

limited

public

transportation, especially for parents struggling to reach

a child care provider before and after work without

access to reliable personal transportation. No one should

be trapped in poverty because he or she cannot afford to
get to work.

166

Governor Cuomo will propose New York Work

Access grants to help low-income workers in highly-

distressed neighborhoods and rural areas access a car

through assistance with down payments, low-interest

loans, repairs, insurance, license or registration fees, and

drivers education.

Work Access

grants

will provide

reliable

transportation for families and provide additional

related services, such as car insurance, drivers

education, or a child safety seat. Low-interest auto loans

will enable low-income families to establish a positive

credit history as well as get reliable transportation to

work. The initiative is modeled on the national nonprofit

Ways to Work program, which helps 94 percent of its

participants maintain or improve their employment; 82

percent to sustain themselves without publicly funded

cash assistance; and returns $2.48 in benefits for each $1

invested. 118

Proposal: Launch Empire Corps: A New Youth Corps

to Help New Yorkers in Need
Last year, the Governor built on the legacy of

President

Franklin

Delano

Roosevelts

Civilian

Conservation Corps, one of the enduring landmarks of

the New Deal, and launched the New York States

167

Excelsior Conservation Corps, a new environmental

education and stewardship program for 18 to 25-year

olds. This 50-person service program demonstrates a

truth the Governor knows wellcommunity service is a

muscle that grows with use.

This year Governor Cuomo proposes to expand this

model further by launching Empire Corps, a new effort

that will enable up to 150 AmeriCorps members to join

front line efforts to address poverty, hunger and

homelessness across New York. Empire Corps members
will serve with direct-care agencies in pockets of upstate

where poverty is concentrated. Empire Corps members

will be placed in nonprofit agencies providing critical

services such as health care, education and mentoring,

financial

literacy

and

skills

development

for

disadvantaged New Yorkers and will receive extensive

training from the state in partnership with SUNY and
community service organizations.

Empire Corps will help to foster and leverage

community spirit among young New Yorkers while

providing them with the skills, financial stipends, and

educational financial awards that further their path to
college and a career, while addressing priority needs of
the state.

168

Proposal: Implement Recommendations of the AntiHunger Task Force

For nearly three million New Yorkers, food is

unaffordable or inaccessible. Benefits meant to help can

be difficult to reach, and can fall far short of the high cost

of living many New Yorkers face. The consequences of

hunger are far reaching: leading to negative health

outcomes, decreased performance at school and work,
mental and emotional distress, especially among

children and the elderly. 119 Since coming to office,

Governor Cuomo has made alleviating hunger and

increasing access to healthy food key priorities for New
York. In 2011, he launched the FreshConnect Program,
which brings fresh, locally-grown farm products to

communities with limited access to them through

support for farmers markets, youth markets, and box

delivery projects. As an added benefit, the FreshConnect
Checks Program provides a 40 percent increase in

buying power for SNAP recipients who use their benefits

at FreshConnect farmers markets. During calendar year

2015, over 150,000 checks have been issued to 180 sites

across the state to help eligible New Yorkers access fresh,
healthy food.

169

In 2012, Governor Cuomo eliminated the

stigmatizing requirement of being finger imaged as a

condition of SNAP eligibility and began an aggressive

outreach program to enroll people who are eligible.

Select school districts in New York State began providing

free school meals to all students through SNAPs

Community Eligibility Option. In 2013, New York

launched a Farm to School program to bring healthy,

locally-grown food to school cafeterias, starting with

Broome and Tioga Counties.

In 2013, Governor Cuomo established the Anti-

Hunger Task Forcea group of 31 government and

external leaders in healthcare, education, social services,
agriculture, the food industry, and organizations serving

populations most affected by hungerto identify

additional steps the state can take to combat hunger and

improve access to local and fresh foods. The Task Force

was chaired by Margarette Purvis, of the Food Bank for

New York City, and co-led by Arva Rice, of the New York

Urban League; Beth Finkel, of AARP New York, Joel Berg,

of the New York City Coalition Against Hunger; Julie

Suarez, of the Cornell College of Agriculture and Life

Sciences; Linda Bopp, of Hunger Solutions New York; and

Stephen Cook, of the University of Rochester. In response

170

to the task forces recommendations, Governor Cuomo

invested $4.5 million in 2015 to bolster the states

emergency food system which helped 2,500 emergency

food providers serve more than 225 million meals to

New Yorkers who access emergency food programs each
year. In addition, state agencies have stepped up efforts
to increase enrollment in the federal Child and Adult

Care Food Program, leading to an almost 6 percent

increase in healthy meals and snacks for needy New
Yorkers in 2015.

In 2014, Governor Cuomo dedicated $6 million to

protect approximately 300,000 New York families who

would have lost benefits under the federal Farm Bill, an
action that preserved $457 million a year in federal SNAP
benefits. 120

The Anti-Hunger Task Force has worked

tirelessly since 2013 to research issues related to hunger

in New York and has developed a series of smart

recommendations for the state to pursue, many of which
are adopted below.

Proposal: Commit $22.5 Million to Improve Access to

Emergency Food
The states emergency food system helps 2,500

emergency food providers serve more than 225 million

171

meals to New Yorkers who access emergency food

programs each year. To build on the states 2015 $4.5

million investment in this system, the Governor

proposes an additional $22.5 million to extend his $4.5

million annual investment through 2020.

The Governor proposes an additional $22.5 million

to extend his $4.5 million annual investment in
emergency food programs through 2020.
Proposal: Establish New York State Council on
Hunger and Food Policy
To establish a permanent focus on anti-hunger

issues in the state, Governor Cuomo will establish the

New York State Council on Hunger and Food Policy. The

Council will be composed of 26 members appointed by

the Governor and chaired by the Commissioner of the
Department of Agriculture and Markets. Other members

will include commissioners from relevant state agencies

and private individuals with significant experience in the
various facets of combating hunger. The Council will play
a key role in advising the state on policies and programs
172

to improve access to food, including healthy, locallygrown food.

Proposal: Extend SNAP Benefits to 750,000

Households
The federal Supplemental Nutrition Assistance

Program (SNAP) provides eligible individuals and

households with monthly electronic benefits that can be

used to purchase food from approved stores. The

program is funded by the federal government and

administered by both New York State and county
governments. Eligibility for SNAP is determined by

income and household size, although other factors, such

as age and disability of household members, can also
impact

benefit

levels.

During

October

2015,

approximately three million New Yorkers received SNAP

benefits totaling $418 million. 121

People trying to get help from the nations largest

anti-hunger program the Supplemental Nutrition

Assistance Program, or SNAP must first pass a two-

part test to determine eligibility for the program.

However, even before there is a careful eligibility review

of a persons actual, or net, income and expenses. But

first, there is an initial hurdlethe Gross Income Test
(GIT) which requires that a persons total household
173

income, without any exclusions or adjustments, must be

less than 130 percent of the federal poverty level. The

GIT prevents otherwise eligible people from accessing

the help they need from SNAP. 122

Governor Cuomo will adopt the recommendation

of the Task Force and will raise the Gross Income Test
level to 150 percent of poverty for all households with

earned incomea move that will extend eligibility to an

estimated

750,000

households

currently

not

participating in SNAP. This change will deliver an

estimated $688.5 million in additional federal SNAP

benefits to New Yorkers, with an estimated economic

impact of $1.27 billion, without any attendant increase in
state or county costs. 123

Proposal: Leverage Federal Nutrition Programs &

Eliminate Barriers to Benefits
With hunger affecting nearly three million New

Yorkers, this state simply cannot afford to leave available

federal resources for nutrition assistance on the table.
This is especially true for key entitlement programs that
can expand to meet needs, but are currently
undersubscribed in New York. The Child and Adult Care
Food Program (CACFP) is a federal program that

provides reimbursement for healthy meals served in

174

child care programs, adult day care centers, afterschool

programs, and shelters, amounting to approximately

340,000 meals to children and adults each day. 124 But

many eligible organizations are unaware of the program

or find enrollment too burdensome. As recommended by

the Anti-Hunger Task Force, Governor Cuomo will
continue to support $250,000 in grants to help child and

adult care programs maximize federal funds that

subsidize free food for children and adults in those

programs.

To better ensure that people in need of help from

SNAP are able to access that essential anti-hunger

program, the Governor will also drive program

enrollment by building on the states Nutrition Outreach

and Education Program, one of the most extensive such

programs in the country, and increase its reach through

coordinated efforts with local State Offices for the Aging

and the Office for New Americans, agencies that work

most closely with groups that have particularly low rates
of participation in federal nutrition programs.

Proposal: Redesign Electronic Benefits Card

The stigma associated with using SNAP can deter

new or potential applicants, cause dissatisfaction among

175

participants, and even contribute to participants exit

from the program. 125 Under Governor Cuomos

leadership, New York has taken important steps toward

reducing stigma including the 2012 elimination of the

finger imaging requirement for SNAP applicants and

recipients. To further reduce stigma, the Governor will

adopt a recommendation from the Task Force and will

direct the Office of Temporary Disability Assistance to

issue a redesigned Electronic Benefits Card in 2016 that
looks like a credit card and maintains appropriate
security safeguards.

Proposal: Support Young Adults Transitioning from

Foster Care
In New York State, approximately 4,000 youth

and young adults are discharged annually from foster

care, and about one in six are discharged to independent

living. 126 National research shows that youth who age
out of foster care face enormous challenges, as they are

expected to make it on their own long before the majority

of their peers. 127 These youth are more likely to trail in

educational advancement and economic achievement. 128

To give these vulnerable young people better

opportunities for success as they age into adulthood,

Governor Cuomo will establish Pave the Road to

176

Independence, a public-private partnership to promote

educational, economic, housing, and vocational success

for youth leaving foster care. The partnershipjoining

business leaders and the Office for Children and Family

Services, Office of Temporary and Disability Assistance,

Department of Labor, Housing and Community Renewal,
Office of Mental Health, Office of People with

Developmental Disabilities, and institutions of higher

educationwill:

Certify 1,000 vulnerable youth a year as eligible

participants for Urban Youth Jobs Program and
priority for related job readiness and support
assistance;
Prioritize foster care youth in the Governors
New New York Leaders: Student Intern
Program and connect up to 200 eligible youth
with state internship opportunities; and

Identify pathways across various state programs

and services for stable living supports and
employment opportunities for children with
developmental disabilities as they age out of
care.
Governor

Independence

Cuomos

initiative

Pave

will

the

Road

coordinate

to

early

interventions to help young New Yorkers transitioning

177

from foster care to obtain the education and employment

opportunities they need for a path to success.

Proposal: Strengthen Penalties for Child Abuse

Each year in New York State, about 8,500 children

are alleged to have been abused by their parents or

caregivers. 129 Nationwide, 679,000 children were

subjected to substantiated child maltreatment in

2013. 130 A nationally representative study of children

aged 017 reported that 10.2 percent of children in the

United

States

experienced

some

form

of

maltreatment. 131 According to the Center for Disease

Control, the problem is more alarming than we know,

since many cases of child maltreatment are not reported

to police or social services. 132

In too many cases, child abusers do not receive

prison sentences even after committing disturbing,

violent crimes against children. To protect vulnerable

children from maltreatment and abuse, Governor Cuomo

will propose the creation of a new felony offense for

endangering the welfare of a child, where a serious

offense has occurred or where the individual has a

history of committing crimes against children. The new

offense would be a class D felony and bring with it

178

increased sentences up to 7 years prison. Under current

law, endangering the welfare of a child is only a

misdemeanor, which can receive the maximum sentence

of 1 year in county jail. By strengthening the penalties for
abusing children, New York will better protect children
and prevent future violence against young people.

PART TWO: RIGHT PRIORITIES

There are currently 53,000 people incarcerated in

New York State prisons. 133 In 2015, New York took bold

actions to improve the conditions for these people

including groundbreaking reforms in the use of solitary

confinement. The Governor has outlawed placing minors
in solitary confinement and also signed an Executive
Order to move certain juvenile offenders from adult
prison facilities into age-appropriate alternatives.

The Governor has also taken critical steps to

increase the ability of formerly incarcerated individuals

to

contribute

positively

to

their

families

and

communities when they return home. The Governor has

offered pardons for people convicted of non-violent

crimes committed when they were 16 or 17 years-old,

and who have since lived crime-free for ten or more

years. To ensure that formerly incarcerated individuals

179

are able to find a place to live, the state adopted guidance

that forbids discrimination based on a criminal

conviction alone when applying for New York State-

financed housing. To ensure that this population is able

to secure employment, the state issued uniform

guidelines for state occupational licenses that create a

presumption in favor of granting a license to qualified
applicants

with

criminal

convictions,

unless

an

individualized consideration of the applicants criminal

history weighs against it.

In 2014 the Governor created the Council on

Community Re-Entry and Reintegration to further these

efforts and its work has resulted in a series of

administrative

actions

taken

to

help

formerly

incarcerated individuals re-enter society. These actions

include regulatory and policy changes that make it easier
for the formerly incarcerated to secure necessary
personal identification documents, health care coverage,

and documents that demonstrate rehabilitation when

seeking jobs and licenses.

To make New York the national leader in criminal

justice and re-entry reforms, the Governor proposes a

comprehensive seven point Right Priorities initiative
that will help keep vulnerable youth and people of all
180

ages from entering the criminal justice system, while

providing those who do enter prison with the

opportunity to rehabilitate, return home, and contribute

positively to their communities.

Proposal: Expand Community Schools

As discussed more thoroughly in Chapter Two,

the Governor will invest $100 million to support the

transformation of failing schools and other high needs
schools into community schools so that issues of poverty

can be addressed with communities working together to

ensure that every student is prepared, safe, healthy and

ready to learn. This investment is critical to providing

students early opportunities to build positive future and

breaking the trend of higher crime rates among

underserved youth.

Proposal: Urban Youth Jobs Program and Workforce

Training
Research published by the

United States

Department of Health and Human Services has shown

that providing at-risk youth with jobs is an essential way

to steer them away from the criminal justice system. 134

As discussed more thoroughly in Chapter 7, Governor

Cuomo will invest $50 million to significantly expand the

181

size of the Urban Youth Jobs Program, and will institute

a $5 million dollar program to train at-risk youth to join
the workforce.

Proposal: Expand Alternatives to Incarceration to

Reduce Incarceration
New York State has used alternatives to

incarceration (ATI) programs to reduce jail and prison

overcrowding for more than 30 years. 135 These programs

provide diversionary services to people who face a high

likelihood of jail and prison time but do not pose a threat

to public safety, such as counseling, cognitive behavioral

therapy and substance abuse treatment. These services
are designed to keep people out of prison and improve

public health and safety while saving the state

money. ATI programs have been proven to reduce

recidivism, but have been traditionally limited to

participants with alcohol and substance abuse issues. 136

To expand the scope of the program and ensure

appropriate candidates receive the support and

programs s/he needs to avoid engaging in future

criminal activity, the Governor will invest an additional

$1 million to expand the use of ATI programs upstate and

will target the program to a broader group of individuals
182

who are at high risk of otherwise going to prison. This

investment will keep more people out of prison, further
reduce New Yorks reliance on prisons, and allow

individuals to avoid needless prison sentences while also

keeping individuals who pose a threat to society off of the
streets.

Proposal: Reduce Criminal Behavior through

Education
Research shows that educational programming in

prison yields benefits. According to a recent study by the

RAND

Corporation,

participants

who

complete

education programs in prison are over 40 percent less

likely to reoffend upon release and return to prison, and

participants are 13 percent more likely to obtain postrelease employment. 137 Providing access to education in

prison is crucial to supporting an individuals reentry

into the community and reducing the rate of recidivism.
This

proposal

will

help

more

qualifying

individuals earn college degrees, enhance educational

offerings to help people with learning difficulties achieve

high school diplomas, and bring vocational training into

the 21st century.

183

College-Level Courses with Private Funding:

Currently in New York State, approximately
1,000 individuals enroll each year in privatelyfunded college classes in prison. 138 A host of
organizations teach these classes, including local
community colleges, well-known institutions
such as Cornell and New York Universities, the
John Jay College of Criminal Justice, and Bard
College through its distinguished Bard Prison
Initiative, whose debate team recently defeated
Harvards. 139 The Governor will partner with
Manhattan District Attorney Cyrus R. Vance, Jr.,
SUNY and CUNY to invest $7.5 million to expand
college in prison programming in state prisons.
The expansion will utilize $7.5 million of
criminal forfeiture funds obtained by District
Attorney Vance and will provide approximately
1,000 individuals with the opportunity to receive
college-level instruction and earn an Associates
degree, Bachelors degree, or industryrecognized certificate. Classes will begin in the
fall of 2016.

Specialized Education for People with

Learning Disabilities: Forty percent of people
currently enter prison lacking a high school
diploma or equivalent. Only 25 percent of this
population will leave prison with this
credential 140 that is essential for many basic jobs.
Many people in prison also have an undiagnosed
learning disability. 141 To help more learning
184

disabled incarcerated individuals achieve a high

school degree or equivalent, the Governor
proposes investing $2.5 to pay for trained staff
who will test individuals for learning disabilities
and provide small group and individualized
instruction.

Modernized Prison-Based Vocational

Training: To ensure that people leaving prison
have the technological skills needed to secure
21st century jobs, the state will invest $430,000
to update existing printing workshops in prisons
to a digital platform and train individuals in
computer coding. The coding training will
deliver highly marketable skills to graduates and
will be safely done in prisons in a manner that
does not utilize the Internet. 142 The Department
of Corrections and Community Supervision and
the Department of Labor will also work together
to help recently released individuals access
registered apprenticeships in the skilled trades,
among other areas, by ensuring that the skills
taught in DOCCS vocational labs meet the
requirements for pre-apprenticeship training.

Proposal: Provide Transitional Support upon Release

The six months immediately after a persons

release from the criminal justice system is the most

critical time period. In this period, people are most likely
to recidivate and are most susceptible to harm. 143 To
185

break this cycle, the Governor will provide more support

to this population through expanded services and

stronger coordination and of efforts through investing $1
million to expand the County Re-Entry Task Forces to

provide enhanced case coordination for these services.

Expanded supports include:

Transitional Housing: The Governor will

include formerly incarcerated as a target
population for housing assistance. This housing
will be for people who need time to connect with
family, get a job, or qualify for high need housing.
Without housing assistance, returning citizens
add to our homeless population and the
possibility of finding a job and being accepted
into a familys home decrease.

Connections to Employment: Employers can be

reluctant to hire returning citizens, even though
they can be among a business most hard
working and loyal employees. Therefore, the
state will provide over $5.8 million to support
connections to employment. This will include
more than $3 million for employment services
programs for high-risk parolees in both New
York City and upstate urban areas and over $2
million for employment services programs for
low-risk alternatives to incarceration program
participants statewide. DCJS will issue a request
186

for proposals this summer and select new grant

contracts to begin January 1, 2017.

Provide Seamless Provision of Medical and

Mental Health Services from Prison to the
Community: The state will use Medicaid
interventions to serve those released from
prison to the community with addiction, mental
health needs and chronic medical conditions, to
ensure continuity of care. These conditions, left
untreated, would lead to overdose, grave illness
and risk of homelessness.

Proposal: Raise the Age of Criminal Responsibility

The Governor will introduce legislation to raise

the age of criminal responsibility from age16 to age 18,

so that children are not subject to adult criminal

proceedings except for serious crimes. Currently 16 and

17 year old youths end up with life-long adult criminal

convictions, unlike in juvenile court, where records are
generally sealed.

Further, at the Governors request, the Office of

Court Administration will also expand statewide the fasttracking criminal cases involving 16 and 17 year olds

who are detained in jail while their cases await trial.

187

Proposal: Enhance the Rights of Pardoned

Individuals
In 2015 the Governor announced that he will offer

conditional pardons to people convicted of nonviolent

offenses at age 16 and 17 who have been conviction-free

for 10 years. To complement and bolster this effort, at the

Governors request the Office of Court Administration
will restrict public access to the state court systems

criminal history database when the Governor grants a

pardon under this program. Currently, OCA sells criminal
history information to individuals 144 and companies that

is typically used by employers and landlords to screen

job applicants or potential tenants. 145 Going forward, the

court system will no longer sell criminal history

information pertaining to individuals pardoned under

this new program.

PART THREE: FAIRNESS FOR ALL

The nation faces a deepening lack of confidence in

the criminal justice system in the wake of recent

tragedies involving the deaths of unarmed civilians. In

2015, the Governor took action to restore New Yorkers

trust in the system by issuing an executive order that

appointed the Attorney General as a special prosecutor

188

in matters relating to the deaths of unarmed civilians

caused by law enforcement officers. 146 Since taking office

in 2011, the Governor has also bolstered trust in the

criminal justice system by closing more prisons than any

Governor in state history and supporting alternatives to

incarceration that reduce crime and the overincarceration of non-violent offenders. 147

Positive relationships between police and the

populations they serve are crucial in creating safer

communities for everyone. 148 In 2014, Governor Cuomo

launched the Gun Involved Violence Elimination (GIVE)

initiative, to encourage law enforcement in high-crime

counties to focus on reducing and preventing shootings

and firearm-related homicides. In 2015, the Governor
announced

$13.3

million

for

participating

law

enforcement agencies. In 2015, county partners also

participated in a two-day symposium on procedural

justice that featured presentations from state and

national leaders in law enforcement, clergy and
community organizations on the success of procedural

justice efforts in their communities. Procedural justice is

a law enforcement principle that focuses on ensuring
that citizens perceive their interactions with the police to

be fair and respectful. Studies have shown that when

189

police implement procedural justice practices, the

publics view of the police is improved, willingness to

obey the law is greater and crimes rates go down. 149
Proposal: Institute Bail Reform

Under current law, a judge must consider a

number of factors before making the decision to release

a defendant or set bail. 150 These factors include, among

others, employment and financial resources, criminal

history and family ties. They do not include, however,
arguably the most important one:

whether the

defendant, if released, would present a danger to specific

individuals or the general public. New York is one of
only four states in the nation that does not allow public

safety to be taken into consideration in release and bail

decisions. 151 This approach means that people in New

York who do not present a risk to public safety are

detained while people who may present a risk to public

safety are able to post bail and gain release.

Governor Cuomo will introduce legislation to

require judges to consider public safety when making

release and bail decisions. The legislation will also

permit judges to use research-based, accepted risk

assessments when considering a defendants threat to

190

public safety. 152 Other states and cities are using these

risk assessments with good results: more people are

released from jail before trial, without any attendant rise
in crime. 153

The legislation will also reform bail bondsman

practices. Currently, bail bondsman are subject to little

regulation, and as a result some bad actors engage in
predatory pricing and contracting practices. 154 These

issues have a disproportionate negative impact on low-

income people and the legislation will allow the

Department of Financial Services to exercise greater

control over this industry.

Proposal: Require Stronger Pretrial Procedures

Current New York State law does not require that

law enforcement videotape statements made by a

person

while

in

custody. To

prevent

wrongful

convictions based on false confessions, as well as to

protect law enforcement from erroneous allegations of

coercion, the Governor proposed in 2013 the video
recording of criminal interrogations. This proposal led to

an historic agreement between New York States District

Attorneys and the Innocence Project, which was

facilitated by the New York State Bar Association. 155 This

191

agreement will require statements to be videotaped and

will permit reliable
introduced

at

identification

trial.

The

evidence

Governor

to

be

has

previously dedicated nearly $1.7M in grant funding to

help

localities

purchase

video equipment.

Now,

Governor Cuomo will push for legislation to require

recording of interrogations for serious cases and reform

New Yorks use of identification procedures. These

practices are widely recognized as enhancing the

fairness and effectiveness of the criminal justice system

and will make all New Yorkers safer.

Proposal: Increase Opportunities for Families to Stay

Close During Incarceration
Research shows that incarcerated individuals

who stay in regular contact with family members have a

better re-entry transition and lower rates of recidivism

upon release. 156 Children of incarcerated individuals also

benefit from maintaining ties with their parents. 157

To help maintain these incarcerated individuals

ties with family, the Governor will invest $300,000 to

expand a successful video visitation program between

incarcerated parents and their children. The state will

also explore the use of secure e-mail communication

192

tools for use by incarcerated individuals and their

families.

Proposal: Work Release and Parole Board Reforms

In 2015, Governor Cuomo created a Pro Bono

Clemency Program that pairs volunteer lawyers with

applicants seeking clemency who have used their time in

prison to turn their lives around and are seeking release

on that basis. To build on this work the Governor will

pursue additional avenues to help individuals get out of
prisons and back contributing to society.

Work release allows incarcerated individuals

close to release to secure employment outside of prison

while still continuing to live in prison. The program
allows these individuals to earn money and begin to
adjust to the outside world while being closely
monitored. To qualify for work release an individual

must complete required behavioral programs and

demonstrate good behavior. This year, Governor Cuomo
will revive New Yorks use of this program to save the

state money and help incarcerated individuals get back

on their feet, while preserving public safety.

The Parole Board is an independent entity with

members appointed by the Governor. It is charged with

193

making

release

determinations

for

incarcerated

individuals in cases that require discretion. More than

10,000 people are denied parole annually in New York
State and only one in five have it granted. 158
To

expand

the

Parole

Boards

rate

of

discretionary release, the Governor will call on the

Parole Board to explore actions that will result in greater

use, including training incarcerated individuals and their

advocates about how to prepare strong Parole Board

presentations, opening Parole Board interviews with

applicants to the public, and requiring the Parole Board

to articulate on the record for each case how it weighed
evidence of rehabilitation and current risk in making its

decision about release. The Governor will also explore

statutory changes to institute a rebuttable presumption

of release for people at low risk of reoffending.
Proposal: Reward Success after Release

In addition to 16 and 17 year olds pardoned

under the Governors action, people who lead lawabiding lives for a lengthy period of time after a low level
brush with the criminal justice system have earned the
right to a clean slate. However, under current law there
194

is no provision to seal criminal records for the majority

of individuals who have a conviction.

To make it easier for these individuals to move on

with their lives and contribute to society, the Governor

will introduce legislation to allow conditional sealing of

minor crimes for people of all ages. This legislation will
allow the state to seal records for low-level criminal
convictions after an individual has demonstrated that
they havent engaged in criminal activity for 10 years.

Records would remain unsealed for law enforcement

and for state-run background checks if a person seeks

access to vulnerable populations.

Proposal: Deploy New Technologies to Improve Safety

in Prisons
Prisons are inherently difficult and dangerous

environments. To ensure the safety of New Yorks

correctional staff and inmate population, the Governor

will propose to invest $25 million to ensure that

correctional facilities and officers will be outfitted with

the latest technologies available in the field. These

include fixed cameras, thermal imaging, and heartbeat

monitors that increase an officers situational awareness

and can better detect the presence of an inmate. DOCCS
195

will also launch a body camera pilot program to improve

corrections officers visual coverage of prisoner

movement and ensure accountability of behavior. These

tools will provide better information to correctional

professionals and decrease the likelihood of violent
incidents among incarcerated individuals.

Proposal: Establish the Office of an Independent

Special Counsel
In 2015 the Governor signed Executive Order 147

which appointed the Attorney General as a special

prosecutor in matters relating to the deaths of unarmed

civilians caused by law enforcement officers. This

Executive Order was an important step in restoring

public confidence in the existence of an objective and

transparent

review

of

these

tragic

occurrences. However, this is a temporary solution and

more needs to be done. The Governor will propose the
creation

of

an

Office

of

an

Independent

Special Counsel. This Office will be independent of any

existing relationship with law enforcement, thereby

avoiding any appearance of favoritism or partiality. With

an Independent Special Counsel appointed, these tragic

occurrences will continue to receive a fair and

196

independent review that they deserve, while also

increasing the public's understanding and faith in the

process.

197

198

6.

ECONOMIC JUSTICE

Since taking office, Governor Cuomo has fought to

reduce economic inequality across the state and protect

the rights of all workers. The Governor is also committed

to protecting and supporting our most vulnerable

citizens from those living in poverty to new Americans to
those who struggle to put a roof over their familys heads.

Governor Cuomo believes that every New Yorker

who works full-time should be able to stay out of poverty,

take care of their family, and live with dignity and
respect. President Franklin Roosevelt first honored this

social compact in 1938 when he established the nations

first minimum wage. Yet in the past several decades,

national income disparities have grown and we have lost

our way from the path set by FDR. Today, across the

country many people working full-time jobs struggle to

simply keep a roof over their heads. 159

199

Proposal: Increase the Minimum Wage to $15 per

Hour for All New Yorkers
Governor Cuomo has consistently fought to

restore justice to hard working New Yorkers. In 2013,

the Governor signed legislation that raised the minimum

wage from $7.25 to
$9.00
I mean more than a bare
subsistence level I mean the
wages of a decent living.
Franklin Roosevelts
Statement on the National
Industrial Recovery Act, June
16, 1933

December
2015. 160

Governor

as

of

31,

The

also

secured minimum

wage increases for

fast food workers

from $8.75 to $15

per hour 161 and for tipped workers from $4.90 to

$7.50 per hour 162 which began to be phased in on

December 31,, 2015. Most recently, the Governor
announced that the state would raise the minimum wage
for

state

workers

to

$15

per

hour,

affecting

approximately 10,000 workers and making New York

the first state to set such a high wage for public

employees. Additionally, the Governor announced that

the State University of New York will raise the minimum

wage for more than 28,000 employees to $15 per hour.
200

While the Governor has made great strides on

minimum wage, we must go further. The minimum wage

is only one-third of the average hourly wage in New York

State, now over $27. 163 A full-time job at the current

minimum wage pays only $18,720 per year. 164 For a

single parent with two children, that is below the official

poverty line. 165

In order to raise earnings, reduce income

disparities, and increase consumer spending to spur job

growth, Governor Cuomo will push this year to make

New York the first state in the nation to enact a $15
hourly minimum wage for all workers.

To give

businesses the time to plan, the increase will be phased

in incrementally, reaching $15 on December 31, 2018, in

New York City, and on July 1, 2021, in the rest of the state.

201

The scheduled increases will take place as

follows:

Statewide
(excluding NYC)

New York City

Min. Wage

Effective Date

Min. Wage

Effective Date

$10.50

7/1/2016

$9.75

7/1/2016

$12.00

12/31/2016

$10.75

12/31/2016

$13.50

12/31/2017

$11.75

12/31/2017

$15.00

12/31/2018

$12.75

12/31/2018

--

--

$13.75

12/31/2019

--

--

$14.50

12/31/2020

--

--

$15.00

7/1/2021

Raising the minimum wage to $15 will directly

benefit over 2.3 million New York workers 166 about a

quarter of the total workforce and will lift more than

250,000 people in about 110,000 New York families out
202

of poverty. 167

The increase to $15 will bring the

minimum hourly wage up from 32 percent to 55 percent

of the state average wage. 168 It restores the promise of

fairness: $15 is about where New Yorks minimum wage

in 1970 would be, if adjusted for inflation. 169

Not only will raising the minimum wage help keep

New York workers and their families out of poverty, it

will also increase their spending power, 170 helping to

spur the consumer demand that is critical to new hiring
and business growth. The New York State Department of
Labor estimates the increase to a $15 minimum wage

will result in more than a $15.7 billion boost for New

Yorks economy. 171

While opponents argue that a minimum wage

increase leads to job loss, an independent review of 70

studies on minimum wage increases found no

discernable negative effect on employment, and instead,

researchers

have

found

evidence

of

increased

employment from increasing the minimum wage. 172

Economists at Goldman Sachs found that the thirteen

states including New York that increased their state

minimum wage in 2014 had higher rates of employment

growth than the national average. 173 We know this to be

true from our own experience: New York has increased

203

its minimum wage eight times from 1991 through 2015,

and six of those times, employment rose following the

increase. When the minimum wage rises, productivity

tends to increase, and increased worker retention saves

employers recruitment and training costs. 174

Proposal: $20 Billion Housing and Homelessness

Plan
New York has led the nation in affordable housing

preservation and construction over the past five years.

Since taking office Governor Cuomo has committed to

preserve or build 14,300 units of affordable housing

through the landmark $1 billion House NY initiative and

also created the Tenant Protection Unit, which has

returned more than 50,000 housing units to rent

regulation, preserving the affordability of those homes

for years to come. Yet even with these investments, New

York has not been immune to rising housing costs across
the state and must take steps to deliver more affordable
housing to those who need it.

$10 Billion Affordable Housing Program

To add critical supply to the states stock of

affordable housing the Governor proposes House NY

2020, a new, $10 billion, five-year affordable housing

204

plan that will create and preserve 100,000 units across

the

state.

This

historic

investment

offers

transformational blueprint to address the diversity of

housing need across the state, strengthen protections for

tenants, and create new opportunities for low-to-

moderate income households. The Plan which boosts

state spending on housing programs by nearly $5

billionwill build and preserve affordable units and

individual homes; make homeownership affordable for
first-time

buyers; increase

investments

in the

revitalization of our communities; promote housing

choice opportunities for all New Yorkers; revamp

services in ways that better serve clients including New

Yorkers seeking affordable housing; and directly support

permanent housing programs for those struggling with
homelessness as described below.

The comprehensive House NY 2020 Plan will be

released in the coming weeks and will be include

multiple strategic initiatives to prevent more New

Yorkers from getting priced out of their communities.

These strategic initiatives will include:

Build NY through the creation of new

affordable housing including significant
investments to create new units of affordable
205

rental and single family housing to ensure young

professionals can start families in the
communities where they were raised.

Preserve NY to extend affordability

of existing units including new resources to
create a large scale financing program that
specifically supports public housing authorities
utilizing HUD's Rental Assistance Demonstration
program which ensures long term viability for
this critical housing resource that serves many
extremely low income New Yorkers.
Welcome Home NY to combat neglect in
distressed communities and increase access
to housing through new State of New York
Mortgage Agency (SONYMA) initiatives to
facilitate the purchase and rehabilitation of
foreclosed properties in targeted, economicallydistressed communities, with the ultimate goal
of rebuilding home values and owner-occupancy
in neighborhoods.

Ensure State investments benefit all New

Yorkers through the launch
of Opportunity NY which will include initiatives
that promote and protect housing opportunities
including the initiation of Undercover Fair
Housing Testing to identify and address housing
discrimination, especially in higher income
areas.
206

$10 Billion Homelessness Action Plan

New Yorkers should be and are profoundly

troubled by the large number of families and adults who

are homeless today and the conditions in which they live.

As New Yorkers, we will answer the call to assume

greater responsibility and step up to help our neighbors
in need.

Each night in New York, more than 75,000 people

sleep in homeless shelters of various types, and more

than 4,000 homeless people sleep on the street. 175 This

number does not represent only families and single

adults last year, more than 8,000 victims of domestic

violence were rendered homeless and nearly 4,000

adolescents and young people accessed the runaway and

homeless youth shelter system. 176

Homeless people often choose to live on the street

rather than seek shelter because too many homeless

shelters around the state are unsafe or have other health

violations that render them out of compliance with state

and local laws and regulations. Since April 1, 2015, state

inspectors identified 2,508 health and safety violations
at homeless shelters across the state. 177 At the same

time, New York taxpayers spend $1 billion to fund the

shelter system. These problems would be bad enough if

207

families and individuals were only in shelters for short

time. Unfortunately, due to a lack of affordable housing

supply, families with children stay in shelters an average
of 430 days. 178 Living on the street, particularly in harsh

weather conditions, should never be a better choice than

living in shelter.

Governor Cuomo proposes an historic $10 billion

commitment to combat homelessness. The Governor

proposes $2.6 billion for 6,000 new supported beds,

1,000 emergency shelter beds and other homeless
services. Moreover, the Governors plan will fund the

construction of 20,000 new supportive housing beds

across the state.

This more than $2.6 billion in funding for

permanent supportive housing and other services over

the next five years is in addition to the $7.8 billion we
expect to spend over the next five years through our
continuing

commitments

in

support

of

44,000

supportive housing units, 77,000 shelter beds around

the state, and other homelessness-related services. New

Yorks

total

financial

commitment

to

address

homelessness over this five-year period will be more

than $10.4 billion.

208

three

New York will also invest new resources over

years

to

specifically

address

vulnerable

populations experiencing homelessness. To coordinate

this and other funding the state will utilize the existing

federal Department of Housing and Urban Development

Continuum of Care model that engages localities and not-

for-profit providers in developing and implementing

data-driven strategies to address homelessness in

specific populations such as victims of domestic violence,

runaway and homeless youth and formerly incarcerated

individuals. Each jurisdiction will be required to

demonstrate that their proposals are consistent with

their most recent HUD Continuum of Care reports and
have the support of their local Continuum. For those

areas of the state without a Continuum of Care, the state

will partner with them on the necessary planning and

engagement processes to ensure local level partnership.

To restore the publics trust in the shelter system

the state must improve the conditions of the shelters it

supervises and regulates. The state will partner with

State Comptroller Thomas DiNapoli to audit shelters

statewide, New York City Comptroller Scott Stringer to
review and inspect New York City shelters, and Buffalo

Comptroller Mark J.F. Schroeder to review and inspect

209

Buffalo shelters. They will do on-site inspections and

review operating and financial protocols.

Shelters determined to be unsafe or dangerous

will either immediately add local police protection or be

closed. If a shelter is determined to be unsanitary or

otherwise unfit it will be subject to contract cancellation,

operator replacement or closure because there are many

qualified nonprofits that are capable of running a good

operation. If an operators management problem is
systemic, a receiver will be appointed to run the system.

In addition, the state will require all social service

districts to comply with the laws and regulations of New
York State or be subject to sanctions.

Proposal: Enact Paid Family Leave for New York

Workers
The composition of Americas workforce has

changed drastically since the 1950s: 47 percent of the

states workforce is now female, 179 people are working

longer hours and retiring later, and families frequently

rely on dual earners to make ends meet. 180 Families must

still balance work and home responsibilities including
childcare and childbirth, tending to sick family members,
and eldercare. Federal law currently provides only for

unpaid family leave, 181 and creates a dilemma for those

210

caught between the need to care for a sick relative or

newborn and the pressure to return to work and earn
money. Moreover, federal unpaid family leave only
covers approximately 60 percent of all workers. 182

To help workers care for their families while

protecting their earnings and job security, the Governor

proposes a new paid family leave program for New York
workers. New York States Paid Family Leave Program

will provide twelve weeks of job-protected, employeefunded leave to be used for bonding with a new child or
caring for a sick relative.

Statewide paid family leave will particularly

benefit low-income workers who often lack benefits or

job security, and for whom access to any leave, even

unpaid, is often not available or cost prohibitive. 183 Paid

family leave also has the potential to serve as a great
equalizer for women.

This is so because in many

instances, women who leave the workforce to care for a

newborn not only forfeit their existing salaries in the

short-term, but also suffer diminished future earnings

and career trajectories in the long term. 184 Establishing
paid family leave marks a pivotal next step in the pursuit
of equality and dignity in both the workplace and the
home.

211

Proposal: Ensure Financial Security for Retirees

Americans face a growing retirement crisis.

Nearly 40 million households in the United States do not

have retirement accounts. Traditionally, retirement

savings have relied upon a combination of personal

savings, Social Security, and employer-sponsored

retirement savings plans or pensions. However,

increasing numbers of employees work for a company

that does not offer a retirement plan. 185

Approximately 3.5 million private sector workers

aged 18 to 64 in New York lack access to an employer-

sponsored retirement savings program. 186 Many of these

workers

face

delayed

retirements

and

reduced

standards of living, and will be forced to rely on the

states taxpayer-funded social safety net.

To address this growing problem and provide

input into future legislation, Governor Cuomo will create

the NY SMART Commission (Saving More to Achieve

Richer Tomorrows). Carl H. McCall, Chairman of the

State University of New York Board of Trustees, will

chair the Commission.

Chairman McCall has deep

expertise in the financial sector, having served as

Comptroller of the State of New York, Vice President of

Citibank and Corporate Director of the New York Stock
212

Exchange. The Commission will consist of additional

experts from the financial services industry, consumer

advocates, public officials, and state regulators. The

Commission will partner with state agencies, financial

services

professionals,

consumer

advocates,

and

academics to study available options for the creation of a

state-administered retirement savings program for

workers whose employers do not offer a retirement plan.

213

214

7.

CLOSE THE SKILLS GAP

AND TRAIN YOUTH

New York State has created more than 759,000

private sector jobs since December 2010. 187 The states

private sector job count is at an all-time historic high

with more than 7.9 million jobs. 188 To date the statefunded economic development projects have created

more than 200,000 jobs through the Regional Economic

Development Councils and unemployment continues to

decline in every region from 8.4 percent in December

2010 to 4.8 percent as of November 2015 the lowest

level in 8 years. 189

However, assuming current education and labor

market trends continue into 2020, New York State will

face a shortage of as many as 350,000 workers for jobs
that require more than a high school diploma but less
than a four-year degree commonly referred to as

middle-skill jobs. 190 These jobs include electricians,

dental hygienists, elevator installers and repairers,

paralegals, and radiation therapists, among many other

professions. A large number of these jobs will potentially

remain vacant because of a lack of adequately trained
215

candidates. Many manufacturing jobs also now require

workers to hold some form of rigorous post-secondary

education, either a certificate or an associate degree, in

addition to on-the-job training. 191

According to a

nationwide survey, 67 percent of employers surveyed

indicate a moderate or severe shortage of adequately

trained workers. 192

This skills gap is one of the greatest challenges

facing New York States economic development goals. 193

There are 2.5 million youth aged 16-24 in New

York State. About 1 million of them are employed;

however, approximately 170,000 or 14.5 percent are

unemployed. 194 Governor Cuomo is committed to

helping New Yorks youth obtain work skills and

employment opportunities, and believes they can play a

central role in New Yorks current and future economy.

Thats why he has doubled funding and has enabled a

two-thirds increase in youth participating in New York
States Summer Youth Employment Program, which

provides valuable work experience to low-income young

people ages 14 to 20. More than 83,000 youth have

benefitted from this program since Governor Cuomo

came to office, and he proposes an additional $31 million

to enable another 19,000 youth to participate in the

216

coming year. To ensure that our disadvantaged youth

benefit fully from New Yorks growing economic

prosperity the state will further expand availability of

incentives and skills training programs for this
population and link them to services available through
different state agencies.

Proposal: Invest $5 Million to Launch Apprentice

SUNY
Advanced manufacturing jobs are booming in

New York, with some occupations projected to grow by

29.5 percent between 2012 and 2022. 195 When hiring,

employers place high value on on-the-job training in

addition to a degree. To meet the growing need for a

skilled workforce, Governor Cuomo will work with New

Yorks community colleges to develop one of the largest

statewide public-private apprenticeship programs in the

country to help students complete degrees while
participating in registered apprenticeships and generate

thousands of new employment opportunities for

community college graduates.

The Governor proposes Apprentice SUNY, a new

$5 million program that builds on the infrastructure

developed with the $15 million USDOL TAACCCT grant

awarded to Monroe Community College in 2013. The
217

TAACCCT grant in advanced manufacturing created

degree and certificate programs at the College in

occupational areas such as Mechatronics, a combination

of mechanics, hydraulics, control systems, electrical
technology and computer technology used in a wide
range

of

contemporary

advanced

manufacturing

facilities. While the College exceeded its three-year goal

of enrolling 3,000 students to 3,100 in 18 months, the

TAACCCT grant program benefits end at job training and

do not help students secure a job upon graduation.

Apprentice SUNY will help 2,000 students receive

classroom and practical training through new registered

apprenticeships

linked

to

degrees

that

provide

participants with paid on-the-job skills training, a degree

or certificate, a portable, national industry recognized
credential,

and

full-time

job

upon

graduation. Apprentice SUNY will work with employers

to leverage the Urban Youth Jobs Program to provide tax

credits for employing eligible youth and will establish a

new pathway to high demand jobs with competitive
wages in New York over the next five years and beyond.

Apprentice SUNY will develop a two pronged

approach to expand registered apprenticeships for 21st

century jobs. One part of the program will serve the
218

needs of large semi-conductor manufacturers by linking

existing community college certificates and degrees with

on-the-job training opportunities at these employers.

The second part of the program includes a partnership

with regional private sector employers to develop a pilot

program that will partner employers with higher

education institutions to develop a new apprenticeship

model and access tax credits for employees through the

State Urban Youth Jobs Program. The pilot program will

consist of a new Department of Labor-approved Regional

Business Intermediary model that addresses the needs

of small and medium sized advanced manufacturers who

often find it difficult to participate in the New York State

Registered Apprentice program on their own.

Proposal: Create the $3 Million Middle-Skill Jobs Gap

Training Fund
New York State is ranked number one among all

states for having one of the best federal Workforce

Innovation and Opportunity Act (WIOA) 196 adult and

dislocated worker programs that placed more than

260,000 jobseeker customers in jobs in the 2014-15

program year. 197

While New York only receives 6

percent of total available federal workforce funding, 198

New York accounts for roughly 30 percent of the nations

219

placements. 199 Under WIOA, Department of Labor (DOL)

oversees New Yorks network of Career Centers, and

works in coordination and collaboration with local
government agencies to provide employment services

throughout the state. New York direct and funded job

training programs train more than 20,000 people each

year. 200

Several factors contribute to the states skills gap

challenge, including: more jobs available than the

number of individuals with the required skills to fill

those openings; geographic discrepancies between

where jobs are created and where the workers qualified

to fill them are located; and the broader shift in the

states economy from an industrial-focused economy to

one driven by the service-based innovation and

technology sectors.

To close the skills gap, Governor Cuomo will

dedicate $3 million of discretionary WIOA funds to

create the New York Workforce Training Fund. The Fund

will work with the Regional Economic Development

Councils to provide funding to training providers, not-

for-profit organizations, and private sector entities to

provide skills-based job training to new and incumbent

workers. The Fund will ensure that New York has a pool
220

of middle-skill workers available to meet the business

needs specific to each region, and innovation-based

businesses will continue to bring their employment
opportunities to New York.

Proposal: Modernize the New York Apprenticeship

and Training Council
2016 marks the 75th year of the New York State

Registered Apprenticeship program. This time-honored

training system administered through the Department of

Labor combines structured on-the-job training with
classroom instruction to ensure that workers gain

specific, job-related skills. This program has seen

significant growth over the last five years, from 3,419

newly enrolled apprentices in 2010, to nearly 5,200 in

2015. 201 Governor Cuomo will build upon the success of

this model to ensure that New York has the best

prepared workforce in the nation by engaging educators

and creating innovative public/private partnerships to

modernize the system.

Under Article 23 of New York State Labor Law, the

governor appoints the New York Apprenticeship and

Training Council to advise the Commissioner of Labor on

issues related to apprenticeship, including supplemental

classroom instruction, quality standards for registered

221

programs, relationships between government and the

private sector and to identify trends related to

apprentice training. In the past, we have looked to

experts, employers, and labor organizations for advice

on apprenticeships. The seven member Council is

currently comprised of three representatives each from

labor organizations and employer organizations, as well

as a single member representing the public at-large.

To ensure that registered apprenticeships in New

York State reflect the training needs of the new economy

and link to our educational institutions, the Governor

will modernize the Registered Apprenticeship Program

in New York by adding council members from public

colleges, community colleges or boards of cooperative

educational services (BOCES) who have experience
providing

related

instruction

for

apprenticeship

programs. These members will bring the higher

education skills and training perspective to the table and
advise the Commissioner on how best to leverage the
sector to train future apprentices.

Proposal: Deploy the Unemployment Strikeforce to

Western New York
In May 2014, the Governor implemented the

Unemployment Strikeforce in the Bronx to boost

222

employment through intensive job placement services

and workplace training. The Bronx has seen a dramatic

decrease in the unemployment rate, which has dropped

from 11.1 percent in November 2013, before the
Strikeforce launched, to just 6.9 percent in November

2015. 202 There are now more Bronx residents (572,000)

working than at any point in the boroughs long
history. 203

In January 2015, the Governor expanded the

Unemployment Strikeforces efforts to focus on nine

additional counties with

There are now more

Bronx residents
working than at any
point in the boroughs
long history: 572,000.

high unemployment rates:

Franklin, Jefferson, Kings,
Lewis,

Orleans,

Lawrence,

Montgomery,

Oswego,
and

St.

Steuben

Counties. Over the past

year, each of those 10 counties experienced dramatic

drops in their unemployment rate averaging more than

2.5 times the average statewide improvement. 204

To ensure continued progress, Governor Cuomo

will extend the reach of the Unemployment Strikeforce,

expanding to Western New York to focus on the cities of

Buffalo, Lackawanna, and Niagara Falls. The Strikeforce
223

will target jobseekers in this new region that are facing

barriers

to employment, such as residents in

economically distressed communities, disconnected

youth,

the

formerly

incarcerated,

long-term

unemployed, individuals on public assistance, those

lacking a high school diploma or equivalency, and
individuals with no employment experience to ensure
they have access to and the skills required for local jobs.
Proposal: Transform New York States One-Stop
Career Centers

The New York State Department of Labor

operates 96 One-Stop Career Centers across the state

that offer job placement services, career counseling,

resume development and vocational training to

jobseekers. Although Career Centers are state-funded

they are often co-located with local workforce and social

services agencies, often poorly branded and sometimes
difficult to find.

While the overall unemployment rate has fallen

steadily over the past four years, it remains persistently

high for underserved populations and communities.

Oftentimes, jobseekers are unaware of job training and

placement resources available at the state Career
Centers. Building upon the success in transforming the
224

DMV experience, Governor Cuomo will rebrand and

modernize the states 96 Career Centers. The effort will

begin with a select group of pilot facilities that will

serve as models for a subsequent statewide roll-out. The

offices will be attractive and easily recognizable to

businesses and jobseekers alike. They will leverage and
complement online resources as well as those provided
by other governmental entities and private providers.

To be effective, these re-imagined career centers

will be citizen-centric approach and provide the highest

levels of customer service. This includes appealing to

and supporting both traditional jobseekers as well as

underserved populations facing barriers to employment,

such as individuals with disabilities, veterans, formerlyincarcerated persons, disconnected youth, low-income

individuals, the long-term unemployed, adults with

limited literacy, and/or immigrants.

225

Proposal: $50 Million Urban Youth Jobs Program

Governor Cuomo launched the Urban Youth Jobs

Program in 2012 to combat unacceptably high

unemployment rates among inner-city youth. The initial

launch of the program in 2012 included $62 million to

support job-training programs and $25 million in tax

credits to encourage businesses to hire unemployed,

disadvantaged youth in selected cities. Since its launch,

the program has

Since its launch, the Urban Youth

Jobs Program has helped secure
more than 31,000 jobs for youth
at more than 1,500 New York
businesses.

helped
more

secure
than

31,000 jobs for

youth at more
than 1,500 New

York businesses

across targeted urban communities with high youth

unemployment. 205

In response to the continued success of and demand

for this program, the Governor proposes expanding the

Urban Youth Jobs Program to $50 million to

accommodate 10,000 youth job placements and

expanding the program to employers in additional areas.
226

Proposal: Create the First State Pre-Apprenticeship

Program
Apprenticeship programs combine classroom

instruction with paid, on-the-job training. Participants

earn decent wages that increase as they gain more

experience. 206 Apprenticeship programs create an

opportunity for working age youth to obtain meaningful,

permanent employment. Pre-apprenticeship programs

give participants the necessary training and exposure to

different trades, like construction and manufacturing, as

well as direct access to positions in registered
apprenticeship programs. 207
However,

disadvantaged

youth

have

been

underrepresented in apprenticeship programs and too

often do not have the skills or opportunities to benefit

from the jobs available from state-funded projects.

Governor Cuomo will lead the nation by creating the first
State Pre-Apprenticeship Program that will leverage
state contracts to ensure that youth in need of work are

connected with businesses in need of middle skill

workers.

This initiative will first recruit approximately 100

young adults between the ages of 18 to 24. The state will

provide these youth with direct entry into a state227

registered

apprenticeship

program

such

LaGuardia Airport reconstruction project.

228

as

the

8.

PROTECTING NEW
YORKS WORKERS

Governor Cuomo is building a better New York by

ensuring that workers have access to job opportunities

at businesses that provide safe and healthy work

environments for their employees. Since taking office,

the Governor has signed the Wage Theft Prevention Act

to increase penalties against employers who violate
workers rights, instituted regulations in the mold

abatement industry, and made a commitment to

aggressively enforce the states prevailing wage laws.

In 2015 the Governor launched the Nail Salon

Industry Enforcement Task Force, a multi-agency effort

to address and prevent unlawful practices within the
industry.

The Governor then successfully proposed

legislation, promulgated regulations, and advanced

administrative reforms to address problematic issues

within the nail salon industry, including wage theft,
retaliation, and unsafe working conditions, as well as
obstacles to obtaining a nail specialty license.
229

The Governor next expanded his focus beyond the

nail salon industry and created a first-of-its-kind Task

Force to Combat Worker Exploitation across multiple

industries in New York. The Governors Task Force to

Combat Worker Exploitation (Task Force) is comprised

of 12 state agencies and is closely supported by an

Advisory Committee of representatives from the labor,

advocacy, academia, and business communities. The

Task Force is charged with examining and ending worker

mistreatment in industries with the highest rates of labor

law non-compliance, including restaurants, home health
care, and construction. Employees in these industries

are often recent immigrants, who are isolated

geographically, work off the books, and have limited
English-language abilities.

Proposal: Protect the Rights of World Trade Center

Rescue and Recovery Volunteers
After one of the most tragic events in the history

of New York and our country, thousands of workers and

volunteers stepped in to help with the rescue, recovery,

and clean-up efforts at the World Trade Center. 208 Since

then, many of these heroes have developed health

conditions linked to the toxic dust and debris at the

230

World Trade Center that has drastically changed their

lives forever.

While affected workers were covered by their

employers

workers

compensation

insurance,

volunteers were left out in the cold. In 2002, Congress

authorized $25 million for New York to establish the

WTC Volunteer Fund ("Fund") to provide volunteers

with medical benefits and indemnity (cash) payments to

compensate for lost wages and other non-medical

treatment needs (such as home health aides and
handicap accessible retrofits to homes). 209

While

Congress increased the funding to $50 million in 2005, 210

the Fund is expected to run out in April 2016.

In 2015, Congress reauthorized the Zadroga Act,

originally authorized in 2011, 211 to provide funding for

9/11-related health problems for volunteers and

workers for the next 75 years. 212 However, the Zadroga

Act only covers costs associated with medical treatment,

it does not cover lost wages or other non-medical
treatment needs.

To honor our heroes, the Governor will step in to

fill the gap left by the Zadroga Act and take care of our

selfless 9/11 volunteers. The Governor proposes to

commit $9 million to sustain the WTC Volunteer Fund to
231

ensure that 1,900 volunteers will continue to receive the

coverage they deserve.

Proposal: Make the Exploited Workers Task Force

Permanent
Since its inception, the Exploited Workers Task

Force has launched more than 450 comprehensive

statewide

investigations

into multiple

industries,

identifying more than 2,700 violations, including theft of

wages, failure to protect workers with mandatory

workers compensation coverage, and retaliation against

workers who complain about violations of the law. The
cases affect more than 2,000 workers in New York
State. 213

To ensure that the work of these groundbreaking

initiatives continues and expands, the Governor will

make the Exploited Worker Task Force permanent. The

Task Force will also join two other worker protection

initiatives, the Joint Enforcement Task Force on
Employee Misclassification and the Nail Salon Industry

Enforcement Task Force, ensuring that their missions

and activities continue.

The permanent Task Force will partner with

advocates and business representatives to make sure

that workers understand their rights and businesses

232

understand their obligations.

Additionally, the Task

Force will enhance communication, collaboration, and

training among member agencies to promote best
practices, appropriate enforcement, and inter-agency
referrals for workers who experience abuse.

Proposal: Protect Immigrant Crime Victims through

Increased Access to U-Visas
Governor Cuomo is a longtime defender of

immigrant rights and vulnerable populations.

Since

taking office, he has rescinded the Secure Communities

program;

required

state

agencies

to

provide

interpretation and translation services; proposed and

signed legislation that cracks down on those who commit

immigrant assistance services fraud; made national

history by making the Office for New Americans the first

state-level immigrant office created by statute; and

pushed for the adoption of the New York State DREAM

Act. Furthermore, the rights of many immigrant workers

will be protected as a result of the work of the Nail Salon

Industry Enforcement Task Force and the Exploited
Workers Task Force.

Undocumented persons are at higher risk of

exploitation at work and are often reluctant to report

violations or otherwise cooperate with law enforcement
233

out of fear of deportation. 214 Currently, there are

approximately 900,000 undocumented individuals living

in New York State, including 522,000 undocumented

workers. 215 New York State laws protect all workers,

regardless of immigration status, against workplace

discrimination, wage theft, misclassification, retaliation,

human trafficking, and other labor standards violations.

In 2002, Congress created the U Nonimmigrant

Visa (U Visa) to protect workers who assist with the

detection, investigation, or prosecution of a crime by

providing them with temporary lawful status while they

assist with the detection, investigation, or prosecution of

a crime.

protecting

The U Visa is an important tool both for

immigrant

crime

victims

and

for

strengthening the ability of law enforcement agencies to

investigate and prosecute crimes. U Visa holders are

eligible for lawful status for up to four years and can

receive an automatic grant of work authorization.
Holders are also eligible to adjust status to lawful

permanent resident after three years. Additionally,

immediate qualifying family members may receive
derivative visas. 216

Governor Cuomo recognizes that a U Visa is a

particularly powerful tool for agencies tasked with

234

enforcing laws that protect vulnerable undocumented

New Yorkers. In the spring of 2011, he directed the New

York State Department of Labor to certify U Visas in

agency investigations for claimants and witnesses who

met certain criteria and demonstrated that they had

been victims of qualifying crimes. 217 To help detect and

prosecute crimes, the Governor will direct the New York

State Police and the Division of Human Rights to

establish official protocols and begin receiving and

processing U Visa certifications for claimants, victims,
and witnesses. Additionally, the Governor will direct the

Office of Children and Family Services, through its

oversight of local departments of social services, to

advise

districts

of

their

responsibility

as

the

investigating entities, to certify U Visas, as provided for

in law.

235

236

9.

KEEPING NEW YORKERS

HEALTHY

Under the Governors leadership, New York State

has established a reputation as a national leader in health

reform. A major component of New Yorks success story

is its Medicaid reform efforts, which have gained national

recognition. When the Governor took office five years
ago, New York possessed the largest and most expensive

Medicaid program in the nation. 218 Today, Medicaid

spending per recipient has dropped to its lowest level in

13 years while savings have been reinvested into the
health care system, thereby improving quality of care

even as enrollment in Medicaid continues to grow. 219 But

the Governors health care agenda extends well beyond

controlling Medicaid costs.

Three crucial elements of this health care agenda

include expanding access to care, transforming the

health care delivery system to improve quality and lower

costs, and using Health Information Technology in a

strategic way to support this health care system

transformation. Over the last five years, health care in

New York State has become more affordable for families

237

and businesses because of the New York State of Health

marketplace and more affordable for taxpayers because

of the far-reaching transformation efforts of the
Medicaid Redesign Team and the related DSRIP
process.

These crucial ongoing initiatives reached

important milestones in 2015. 220

New health care initiatives begun in 2015

included

legalizing

Compassionate

Care

medical
Act,

marijuana

providing

with

support

the

for

individuals living with Alzheimers disease and their

families, and supporting family caregivers by requiring
hospitals to provide instruction on how to perform

medical tasks at home. These ongoing and new 2015

initiatives are described below.

Expanding Access to Health Care

Expanding access to health care by making

affordable health insurance available is one of the critical

accomplishments of the Governors health care agenda.

Through the New York State of Health, the states official

health plan marketplace, New Yorkers now have access
to high quality, affordable health care coverage from

more than two dozen health insurance plans. 221 As of

January 2016, more than 2.7 million New Yorkers were
238

enrolled in coverage and 92 percent of those enrolled

reported being uninsured at the time of application. 222

As a result, New

As of January 2016, more than

2.7 million New Yorkers were
enrolled in coverage, 92 percent
of whom report being uninsured
at the time of application.

Yorks uninsured

rate has fallen to

less

than

percent

as

of

June 2015 - its

lowest point in

decades. 223 Additionally, the health insurance premium

rates for individuals for 2014 and 2015 were 50 percent
lower than what individuals would have paid before

creation of the marketplace in October 2013. 224 For

2016, New York State of Health has introduced an even
more affordable health insurance option for New

Yorkers whose income is at or below 200 percent of the

Federal Poverty Level, or $40,180 for a family of three the new Essential Plan. The Essential Plan lowers

premiums to $20 or less a month (with no deductibles

and low co-pays) and provides comprehensive benefits

for hundreds of thousands of New Yorkers. 225

239

Transforming the Health Care Delivery System

Due to reforms implemented by the Medicaid

Redesign Team (MRT), New York is uniquely positioned

to lead the nation in health care system innovation. In

April 2014, the federal government approved a waiver

that allowed New York State to reinvest $8 billion in

savings generated by the MRT to transform New Yorks

health care system and enhance services for New Yorks

Medicaid members. 226 The transformation plan that is

being financed through these new federal funds is being

implemented through the Delivery System Reform

Incentive Payment (DSRIP) program. DSRIP incentivizes

coordinated care for patients among large regional
networks that include hospitals, primary care providers

and other community-based organizations all with the

goal of improving wellness and health while controlling

health care costs. To date, New York has awarded almost

$1.7 billion to 25 of these regional provider networks

across the state to implement projects that further this

goal. 227

In 2016, DSRIP will move to the next phase of

transforming the health care delivery system in New

York by implementing pilot programs to replace

240

expensive fee-for-service payments with value-based

payments that reward providers for successful patient

outcomes and help to achieve one of the core DSRIP goals

of reducing avoidable hospital admissions by 25 percent

over five years. 228

Continuing Innovation in Health Information Technology

The

availability

of

timely,

accurate

and

comprehensive health information is foundational to

improving New Yorkers health, transforming the health

delivery

system,

and

improving

health

care

efficiency. Including an investment of $40 million in

2016, the state will have invested $116 million to

develop a health information technology infrastructure
capable of sharing information to support and inform

consumers, providers, payers, and other health care

stakeholders.

The first part of this investment developed the

Statewide Health Information Network of New York

(SHIN-NY), which is an interconnected, statewide health

information exchange that enables physicians and other

health care providers to share health information over a

secure network. Strict security and privacy policies

include requirements for obtaining patient consent
241

before providers are allowed to share patient-specific

information using this system. Today, health records for

more than 32 million patients are available to be shared

by healthcare providers with the consent of these

patients, far more than any other state in the country. 229
At the end of 2015, more than 90 percent of acute care

hospitals and 86 percent of community health centers

statewide are connected to the SHIN-NY. 230

The second part of this investment will create an

All Payer Database (APD), a comprehensive information

repository that will collect and integrate health care data
from all public and private payers and providers. Among

other uses, health data collected through the APD will be

used to evaluate healthcare outcomes and support value-

based payment models, and promote or incentivize

higher quality and lower cost treatments. The state will

invest $10 million in 2016 to advance the functionality of

the APD, with additional support provided by federal
funding.

Implementing the Compassionate Care Act

In July 2014, Governor Cuomo signed the

Compassionate Care Act, establishing a medical

marijuana program for New York State. The states

242

carefully crafted program design will allow access to

patients to help alleviate pain and enhance the quality of

life for individuals suffering from such diseases as

Multiple

Sclerosis,

Lou

Gehrig's

disease

(ALS),

Parkinson's disease, epilepsy, cancer, HIV/AIDS, and

neuropathies, while protecting public health and safety
through strict security requirements.

In 2015, the New York State Department of Health

awarded licenses to five organizations in different

regions of the state to grow marijuana and manufacture

it into approved forms.

Each of those licensed

organizations is authorized to manufacture medical

products and sell its product at four sites, which will

provide for 20 dispensaries around the state. In addition,

this program creates a practitioner education course,

practitioner registration program, and a patient

certification system.

On January 7, 2016 the Department of Health

launched the opening of the states Medical Marijuana

program, just 18 months after the Governor signed the

Compassionate Care Act. Dispensaries are now open

across the state, and physicians are registering for the

program and certifying their patients who might benefit

from the treatment.

243

Supporting Individuals with Alzheimers Disease and

Family Caregivers
The 2015-2016 Budget included $25 million in

funding toward care and support services for individuals

living with Alzheimers Disease and other Dementias

(AD/D) and their caregivers. This investment is helping

to reduce preventable emergency department visits and

hospitalizations as well as delay or eliminate the need for
institutional placement.

Under this program, the

Regional Caregiver Support Initiative awarded $1.5

million per year over five years to each of nine

organizations to support caregivers through care and

family consultations, support groups and training, and

respite services.

While caregivers may be able to manage the

everyday tasks required to maintain older persons with

chronic illnesses or disabilities in their homes, figuring

out how to address an illness or injury after a

hospitalization can be confusing and distressing.

Hospital staff often do not provide instruction or

information on what to expect and what tasks will need

to be performed. 231

244

In 2015, Governor Cuomo signed the Caregiver

Advise, Record and Enable Act, which requires that

hospitals allow patients to formally designate a caregiver

before they leave the hospital or are transferred to

another facility. It also requires hospital workers to

provide the caregiver with instruction or training on how

to perform tasks for the patient at home, such as

changing bandages or administering medication.
Ending the HIV/ AIDS Epidemic

In June 2014, the Governor announced New

Yorks three-point plan to end HIV/AIDS as an epidemic

by

For the first time since the outbreak of

the AIDS epidemic in New York State,
there have been no new cases of
mother-to-child transmission in the
state for over a year.

end

2020.

the

of
A

primary

goal

of

the

Governors plan is to reduce the number of annual new

HIV infections to 750, which would achieve the states
first-ever decrease in HIV prevalence. 232

New York

States successes to-date include the elimination of

mother-to-child transmission, with no new cases of
245

mother-to-child transmission in this state for over a year.

This is the first time this achievement has been reached

since the outbreak of the AIDS epidemic in New York
State. 233

In addition, the state has seen dramatic

reductions in cases among injection drug users, and new

infections have been reduced significantly in almost all
categories of race and risk. 234

Proposal: New York State Certified High Quality

Foods
Public interest in safe and healthy foods

continues to grow yet consumer trust in food has eroded

significantly for good reason. 235 The Centers for

Disease Control and Prevention estimates that more than

48 million people in the United States suffer from

foodborne illnesses every year. 236 In addition, the

marketplace is flooded with claims such as made with

goodness or natural, many of which are neither

verified nor have real meaning. New York consumers
deserve better.

New Yorks

vibrant

agriculture

and food

industries position the state to set a national example for

providing consumers with transparent and meaningful
information about the food they purchase and eat. In

2015, the Governor created an Advisory Committee on

246

Safe and Healthy Foods to convene the nations top

experts in food production and food advocacy to examine

food safety and misbranding issues and to identify ways

for consumers which of New Yorks food is the best

available.

The Governor will build on this work to launch

the New York State Certified High Quality Initiative a

comprehensive plan to restore consumer confidence in

New York products, ensure that products are accurately
labeled, and identify New York producers who adhere to

best practices in food handling and environmental

stewardship.

The New York State Certified High Quality

initiative comprises five elements:

Branding & Marketing:The state will create a

New York State Certified seal and make it
available to producers who maintain a certified
Good Agricultural Practices plan and
demonstrate good environmental stewardship.
The seal will signal to consumers which foods
are the best to buy and eat. Building on the
success of the Taste NY program, New York will
launch a full-scale advertising campaign to
inform consumers that they can trust foods that
bear this seal.
247

Enforcement: The state will increase its ability to

enforce laws against misbranding and deceptive
business practices. This will protect not only
consumers, but the integrity of the vast majority
of honest producers as well.

Monitoring:Inspectors from the Department of

Agriculture & Markets will conduct improved,
risk-based food safety on-site inspections and
will increase the number of food samples to test.
Further, the Department of Health Wadsworth
Center Lab and the State Food Lab will partner to
increase testing capacity.
Training & Industry Support: The state will invest
more than $4 million to train farmers in safe
food handling practices and environmental
stewardship through the Agricultural
Environmental Management Program and the
Integrated Pest Management Program. The state
will also leverage the Taste NY and Farm-toSchool initiatives to promote consumer interest
in local, New York State Certified products.
Investment: The state will work with the
Regional Economic Development Councils to
invest in local food distribution hubs that will
improve access to fresh and healthy food for
residents and promote local products to
restaurants and institutional buyers. New York
will also invest in farms that opt to convert to
organic grain production.
248

Proposal: Launch Statewide Effort to Increase

Awareness and Screening for Breast and Prostate
Cancer
Breast cancer is the most commonly diagnosed

cancer and the second leading cause of cancer death

among women in New York State responsible for

almost 15,000 diagnoses and 2,700 deaths each year. 237
Breast cancer screening has been credited with reducing

breast cancer mortality. 238 Screening can increase the

likelihood of identifying cancer at an early stage, when

treatment is most successful. As a result, a top priority

in the fight against breast cancer is to achieve earlier
detection by getting more women screened. In 2014,

about 78.6 percent of age-appropriate women in New

York State reported receiving a mammogram at least
every other year, while approximately 576,000 women
had not. 239

Excluding skin cancer, prostate cancer is the most

common cancer among men in New York State each

year, over 15,000 men are diagnosed with prostate
cancer and over 1,700 men die of the disease. 240

The Governor is committed to increasing the

states breast cancer screening rate by 10 percent over

the next five years.

As a result of the Governors

249

initiative, more than 212,000 additional women will be

screened for breast cancer by December 2020.

241

Further, 25,000 men will receive peer education and

outreach services that will encourage them to discuss

their risk for prostate cancer with their health care

providers in order to make an informed decision about

whether to be screened.

To achieve this objective, the Governor will

launch a $91 million comprehensive, statewide plan to

increase rates of breast cancer screening, help women

access the treatment they need, and educate thousands
of men about the

The Governor is committed to

increasing the states breast
cancer screening rate by 10
percent over the next five
years.

risks
with

associated
prostate

cancer. The state

will

increase

womens access to

screening facilities

and services across the state, and also work to ensure

women receive any necessary assistance in scheduling
and

keeping

their

mammography

appointments.

Additionally, peer outreach efforts will be enhanced to

help more women understand the importance of regular

250

breast cancer screening and to inform men of their risks

regarding prostate cancer.

Proposal: Launch a $15 Million Public-Private

Outreach and Public Education Campaign for Cancer
To encourage more women to get screened for

breast cancer and men to be informed of prostate cancer

risks, the state will implement a two-pronged public

awareness campaign that focuses on underserved

communities.

Every person has unique circumstances that

influence whether or not they get screened regularly for

breast or prostate cancer. To encourage more women to

get mammograms, and men to discuss their risks for

prostate cancer with their health care providers, the

state will fund 10 community-based peer education

programs throughout the state. Peer educators that are

trusted community members will deliver culturally-

relevant cancer screening messages. Breast cancer peer

education programs have been found to increase cancer

screening

rates

and

are

recommended

Community Preventive Services Task Force. 242

by

the

The state will also partner with the Healthcare

Education Project to raise breast cancer awareness

through a media campaign that will target low income,
251

underserved populations and encourage them to get

screened. The campaign will address commonly cited
patient barriers, including fear of the test, and women

not knowing they should be screened. In conjunction

with this campaign, the Department of Health will

establish a website containing a breast cancer hotline

and additional means of connecting women with the

component programs in the Governors breast cancer

initiative. The state will complement these efforts with a

$5 million education and public awareness media

campaign across the state over the next five years.

Proposal: Increase Access to Breast Cancer Screening

The Community Preventive Services Task Force,

an independent panel of experts appointed by the federal

Centers

for

Disease

Control

and

Prevention,

recommends various actions that can help women

overcome obstacles to obtaining breast cancer screening

appointments. These actions include modified hours of

operation at screening facilities to accommodate patient

needs, reducing the time or distance women must travel
to get screened, and providing assistance for scheduling

and traveling to mammography appointments. 243 In

addition to these general recommendations, a recent

252

survey conducted by the Department of Health

determined that approximately one-third of hospitalbased mammography facilities in New York do not offer
alternative hours of services (early morning, evening or
weekend). 244
Based

upon

these

recommendations

and

feedback, the Governor is proposing the following four

initiatives to help additional women schedule and travel
to their mammograms.

Currently, New York State employees receive four

hours of annual leave for breast cancer screening. Many

private sector employees do not have access to this type

of benefit. The state calls upon private sector employers

to provide their employees with four hours annual leave

for breast cancer screening and is happy to announce

that the following employers have already agreed to

provide this leave to their staff:

Eastman Kodak Company

Amneal Pharmaceuticals LLC
D'Addario & Company, Inc.
Lago Resort & Casino
M&T Bank
The Pike Company
Paychex, Inc.
Nazareth College
253

Wilmorite Management Group, LLC

Dixon-Schwabl Inc
LeChase Construction Services LLC
Hueber-Breuer Construction Company, Inc.
Eric Mower & Associates
Le Moyne College

To increase womens access to mammography

services, the Department of Health will require hospital-

based

screening

facilities

that

already

offer

mammograms to offer service hours at least once a week

during the early morning, evening or weekend. This

action will assist women who have difficulty scheduling
their mammograms during the typical 9am-5pm work
day.

To provide access to mammography services to

homebound patients or those who otherwise lack access,

the state will invest $59.5 million to help community
providers purchase and operate mobile mammography

vehicles. Mobile mammography services will be targeted

in areas with a high number of unscreened women per
FDA-approved mammography facility and will provide
convenient, high-quality screening services for women

who may have difficulty getting to a fixed location for an

appointment.

254

Many

women

make

mammography

appointment and fail to arrive or get screened and do not

follow up for further consultation or treatment. To

address this issue and provide coordinated care to

women across New York, the state will invest $11.6

million to hire additional health care workers at cancer

treatment and other health care facilities to identify and
conduct outreach to patients due for breast cancer
screening, address barriers to facilitate screening

completion such as transportation, and assist with

securing any subsequent needed diagnostic follow-up
and treatment services.

Proposal: Dedicate $5 Million in Venture Capital

Funding for Cancer-Related Research and
Technology
Governor Cuomo has prioritized the states fight

against cancer since taking office in 2011, investing over

$29 million in cancer research alone. These investments

include: $5 million to prevent, treat and cure breast
cancer; $3 million to improve our knowledge about the

prevention, detection and treatment of prostate cancer;

and almost $21 million to advance scientific discoveries
in stem cell biology that aim to address cancer.
255

Developing viable digital health and cancer

screening technologies can be costly. Equally challenging

for businesses are the high costs of bringing cancer
treatments to the market. 245 To assist with these

hurdles, the state will invest $5 million from the New

York State Innovation Venture Capital Fund (NYSIVCF)
to support the commercialization of promising cancer-

related technologies. Funding could support products

that help increase the number of women screened for

breast cancer, in addition to innovations that improve

the diagnosis or treatment of breast and prostate cancer.

Up

to

ten

companies

will

receive

state

investments of $500,000 to $1 million to support

research that has entered the early stages of the

commercialization process. To support New York

Ventures in identifying and evaluating investment
opportunities, the state will establish an Advisory Board

consisting of top oncologists, researchers and bioscience

investors. This investment initiative will increase the

opportunity for more businesses to commercialize their
early innovations in cancer research.

256

Proposal: Extend the Upper Age of the Current HIV

Testing Guidelines Beyond 64
New York State law requires hospitals and

primary care providers to offer an HIV test to persons

ages 13 to 64. For older or younger patients, hospitals

and providers must assess these patients for risk before

offering them a test. There is no science supporting the

current age limit of 64. 246 In fact, many older adults

beyond the age of 64 are at risk of HIV and other STD

infections. In fact, half of all people living with diagnosed
HIV infection in this state are age 50 and older, 247 and

approximately 200 cases of HIV are diagnosed each year

in persons age 60 and older. 248 To address this problem,

the Governor will introduce new legislation to extend the

upper age for the offer of an HIV test beyond the age of
64.

Proposal: Broaden HIV Testing and Treatment

Consent Laws for Minors
Under current state law, minors can consent to

STD and HIV testing and to treatment for STDs without

parental or guardian consent.

However, treatment

without parental consent for HIV is not explicitly

permitted in statute, even in cases where the young

person has been abandoned or abused by his parents.

257

Young persons (those between 20-29) have the highest

rate of newly diagnosed HIV infection in New York

State. 249 Once diagnosed, young people often face

additional barriers that can prevent or delay access to

care, including denial and fear of their HIV infection,
misinformation, HIV-related stigma, low self-esteem,

lack of insurance, homelessness, substance use, mental

health issues, and lack of adequate support systems. 250
Because of these factors many young people need to have
the ability to consent to their own HIV treatment. The

proposal to expand minor consent ensures more young

people have optimal health outcomes for themselves and

do not transmit the virus to others.

In addition to consenting for health care, young

people should have the ability to consent for HIV related

preventive services. Young people at high risk who are

negative for HIV should be able to consent to preexposure prophylaxis (PrEP) just as they can for other

reproductive or sexual health related services so they

can remain negative.

The Governor will address both prevention and

access to care by introducing new legislation to allow

minors determined to have capacity to give informed

consent for HIV treatment and prophylaxis and to be

258

granted

expanded

confidentiality

explanation of benefits forms.

protections

on

Proposal: Link Individuals to HIV Treatment and

Improve Viral Suppression
Viral suppression is the ultimate goal for persons

with HIV, as it improves health and virtually eliminates

the possibility of further transmission of HIV. 251
However, thousands of HIV-infected New Yorkers are

not linked to care and as a result do not achieve viral

suppression. 252 In 2014, a change in state law allowed

medical providers to receive information from the
Department of Health on HIV-infected patients. The

Department of Health can now match HIV data with

Medicaid data to identify HIV-positive Medicaid
recipients who are not being treated. The state then can

notify providers and Medicaid managed care plans of

these individuals, thereby linking them to treatment.

A significant component of the Governors plan is

to identify individuals who remain undiagnosed or out of

care for purposes of engagement and retention in care.

The Governor will introduce new legislation that

expands the existing statute to allow HIV -related

information to be shared with care coordinators and care

managers. This expansion will increase the states ability

259

to identify HIV-positive individuals, connect them with

treatment, and suppress the development of their virus.
Proposal: Remove Limitations on the States
Expanded Syringe Access Program

Since the 1990s, there have been dramatic

reductions in HIV cases among injection drug users. In

1990, drug users represented 54 percent of newly

diagnosed cases; in 2013, it was less than 3 percent. 253

This success is attributed to the implementation and

expansion of syringe exchange and the Expanded Syringe

Access Program (ESAP). ESAP reduces the transmission

of blood borne diseases, including HIV and hepatitis, by

enhancing access to sterile syringes. As of April 2015,

there were more than 3,000 ESAP-registered providers

in New York State. 254

Under the existing statute, a maximum of ten

syringes may be sold or furnished to a person 18 years of

age or older without a prescription. However, limiting

the number of syringes available for purchase may
encourage individuals to re-use or share their syringes

a behavior that leads to transmission of HIV and

hepatitis. 255

To further the states efforts to reduce HIV and

hepatitis transmission among injection drug users, the

260

Governor will propose legislation to lift the ten-syringe

limit, which in turn will increase the visibility and scope

of ESAP. This legislation also will allow for syringe

exchange and for ESAP participants to provide syringes

to other injectors who otherwise would reuse syringes

or share contaminated supplies. Finally, this legislation

will lift a current ban on advertising by pharmacies and

will allow them to publicize the availability of syringes
without a ceiling on the number that can be purchased.

Proposal: Increase Funding and Expand Services for

Childrens Mental Health

Mental and behavioral health problems among

children are a large and growing challenge. While

existing mental health problems become increasingly

complex and intense as children transition into

adolescence 256 even very young children are affected.

Addressing mental health problems early is critical to

childrens success in school and beyond.

To more effectively address these problems, the

Governor proposes $7.5 million in new funding, growing

to $30 million in 2017-18 , to establish six new childrens

mental health services in the states Medicaid program.
These services will become available starting January 1,
2017 and include services related to:
261

Crisis Intervention;
Community Psychiatric Support and Treatment;
Psychosocial Rehabilitation Services;
Non-physician Licensed Practitioners;
Family Peer Support Services; and
Youth Peer Training and Support Services.
These new services will place an emphasis on

early intervention for children experiencing mental or

behavioral health challenges before they rise to the level

of needing high intensity clinical services in treatment,
emergency rooms and hospital settings that are more

costly and detrimental to home and community based

living outcomes.

The introduction of these six new childrens

services also represents a critical first step in preparing

the childrens behavioral health system for integration

into Medicaid managed care. One of the obstacles to
delivering effective mental health and substance abuse
services for children and adolescents in New York is that

these services have been delivered in a fragmented and

inefficient manner. Integrating these services into the

Medicaid managed care program will ensure intense
care coordination of physical, mental and behavioral
262

conditions by case managers with significant mental

health experience.

Proposal: Implement the Developmental Disabilities

Transformation Panel Recommendations
New Yorks Office for People With Developmental

Disabilities (OPWDD) provides services for 130,000 New

Yorkers with developmental disabilities. The work of
OPWDD plays a crucial role in the quality of life of
individuals with developmental disabilities and plays a

critically important role in supporting the families who

are caring for developmentally disabled loved ones.

The Governor is leading the transition of service

delivery for those with developmental disabilities from a

traditional system of supports provided in group
residential and day programs to a more individualized

and flexible service model that seeks to maximize

individuals opportunities
independently as possible.

to live

and work

as

OPWDD invested $65 million in federal funds as

part of this long-term transformation effort in 104

initiatives that seek to promote improved outcomes for

individuals with developmental disabilities related to

employment, transition supports and establishing

community partnerships. To help guide this far-reaching
263

redesign, OPWDD in 2015 convened a Transformation

Panel comprised of individuals receiving services,

parents and industry experts. To implement important

recommendations of the Transformation Panel, the
Governor will direct OPWDD to undertake the following
initiatives:

Allocate $120 million in new funding for new

services to support up to 6000 individuals with
developmental disabilities.
Ensure that residential placements will be
devoted to individuals currently living at
home based on need, which will provide relief
for caregivers who are unable to continue the
care they have been providing to their child.
Invest $15 million in capital for supportive
housing options, which will both create more
opportunities for people with developmental
disabilities to live in affordable housing in the
community.

Design a flexible home-based service model

to allow people to get the hours of support that
work best for them and the ability to modify
these services as their needs change.

Provide more flexibility in day services

options for people, including more
opportunities for employment, through creation
264

of a day service model that offers caregivers the

security of a dependable schedule but also
allows for internships, volunteerism and parttime work.
Create value-based reimbursement models
that offer providers incentives for achieving
good outcomes for individuals which have been
developed in concert with individuals, families,
providers and other stakeholders.

Proposal: Combat Opioid Overdose

Almost two million New Yorkers and their loved

ones struggle with the effects of substance use disorder

(SUD) 257, and heroin and opioid addiction is growing

especially quickly among New Yorkers under the age of

25. New Yorks substance use disorder treatment system
has seen a 126 percent increase in admissions over the
last ten years among people aged 18 to 25 who are
abusing opioids. 258

In 2014, the state launched the Combat Heroin &

Prescription

More than 1,500 lives have been

saved from opioid overdose in
the past year.
265

Drug

Campaign
educate

Yorkers
the

Abuse

to

New

about

risks

of

heroin and prescription opioid use and to provide them

with helpful resources. In 2014, the Governor adopted a

range of strong measures aimed at reducing addiction to

heroin and other opiates when he signed into law 12

pieces of legislation that dramatically improved access to

SUD treatment services in New York State. 259

One of the key elements of the Governors 2014

Opioid Heroin legislative package called for increasing

access to the lifesaving overdose reversal drug, Naloxone

by authorizing healthcare professionals to issue non-

patient specific prescriptions for Naloxone to certified

training programs and pharmacies. There are now more

than 250 registered opioid overdose prevention

programs in this state, with more than 85,000

individuals trained to administer Naloxone, who can take

advantage of this law. Through their efforts, more than
1,500 lives have been saved in the past year. 260

To expand access to this life saving drug and help

prevent opioid overdose deaths in New York State, the

Governor will partner with CVS/pharmacy to help

prevent opioid overdose deaths in New York State.

CVS/pharmacy will provide individual training and

naloxone statewide to their customers without requiring
them to present a prescription. The state hopes to add
266

an additional 1,000 pharmacies statewide in early

2016. The Governor will also introduce legislation that

permits any pharmacist to administer the drug in the

event of an overdose.

Proposal: Prevent Opioid Addiction Relapse

Opiate and heroin addicted individuals are at

increased risk for an overdose following a period when

they are in treatment, or incarcerated and then released,

due to their lowered resistance during the time away
from active use. 261 Vivitrol contains one of the three FDA

approved medications that can help patients to stabilize

and resist relapse. Vivitrol works by fighting the
intoxicating effects of heroin, prescription opioids and
alcohol. 262

The Governor will authorize the first Vivitrol

treatment pilot in State Corrections to help inmates

avoid relapse upon release. The pilot will build on an

existing collaboration between the Department of

Corrections and Community Supervision (DOCCS) and an

Office of Alcoholism and Substance Abuse Services

(OASAS) licensed drug treatment program located in
New York City-based Edgecombe Correctional facility.

The pilot will specifically focus on individuals in the five

267

boroughs who have violated their parole by relapsing on

alcohol, heroin or other opioids.

Proposal: Combat Dangerous Synthetic Drugs

Over the last year, there has been an explosion of

synthetic drugs herbal mixtures that produce

hallucinogenic experiences and are marketed as legal

substances. During the three-month period April 1 to

June 30, 2015, New York State saw more than 1,900

emergency department (ER) visits and 680 poison

control center calls due to reports of adverse health
effects associated with synthetic cannabinoid use; this

represents more than a tenfold increase over the same

time period in 2014, when there were more than 150
emergency department visits and 50 poison control
center calls reported. 263

In November 2015, the Department of Health

enacted emergency regulations combating the sale of

synthetic drugs in the state. The tougher regulations
expand the existing list of banned substances to include
new chemical compounds that drug producers have

created since Governor Cuomo first targeted so-called

synthetic marijuana in 2012. But one of the challenges in

combating synthetic drugs is that the chemicals

268

comprising them are not easily detected in standard drug

tests. 264 To overcome this challenge, New York State will

pilot the use of a portable, hand-held high-tech device

which can instantly analyze an unknown substance and

detect whether it contains any combination of these

dangerous synthetics. The Governor will provide $2

million in funding for this pilot program to purchase

portable detection units for law enforcement agencies

across the state.

Proposal: Control Rapidly Rising Prescription Drug

Costs
Rapidly rising costs for prescription drugs pose

one of the biggest risks to maintaining quality affordable

health care for New Yorkers. The Governor proposes a

series of proposals to help insulate New York taxpayers

from having the Medicaid program absorb the full effect

of these prescription drug price increases, while creating

disclosure requirements on manufacturers that will

create more transparency about the business practices

of the manufacturers of these specialty prescription

drugs. Both proposals are aimed at certain specialty

brand name prescription drugs that are prohibitively
expensive yet crucial for the treatment of certain
diseases.

Specialty drugs represent 1 percent of all

269

prescriptions, but 31 percent of the total cost of

prescription drugs. The treatment regimen for some of
the most expensive specialty drugs can cost as much as
$750,000 per year.

For select specialty drugs that are so expensive it

becomes difficult to offer the drug to all Medicaid

patients who could potentially benefit from it, the
Governor proposes that the Department of Health

effectively cap the price of these drugs by requiring drug

manufacturers to provide a minimum level of rebates to

Medicaid. The state will determine the amount of the
minimum rebate through an actuarial study.

The Governor also proposes that manufacturers

of the same select specialty drugs provide the

Department of Health with such information as the

actual cost of developing, manufacturing, producing, and

distributing the drug; research and development costs of

the drug, marketing, and advertising costs for the drug,

prices for the drug that are charged to purchasers

outside the United States; and the average profit margin
of each drug over the prior five year period. These

disclosure requirements will provide transparency

about the business practices of the specialty drug
270

manufacturers and put a spotlight on the problem of

rising pharmaceutical drug prices.

Proposal: Strengthen the Home Health Care

Workforce
As New York States population ages, more

individuals are relying on long-term care, and want to

receive that care in their own homes, rather than going

to a nursing home. Home health care is a fundamental

support needed for people to remain independently in

their homes and integrated in their communities. Home

health aides provide help with basic daily activities that

many of us take for grantedbathing, dressing, meal

preparationthat elderly and people with disabilities
may not be able to do on their own. However, home
health aides are prohibited from helping with other
activities

such

as

medication

administration

or

The Governor is proposing legislation

to

assistance with medical equipment.

authorize Advanced Home Health Aides (AHHAs) to

perform specified advanced tasks under the supervision

of a licensed registered professional nurse employed by

a home care services agency, hospice program or

enhanced assisted living residence. Performed under

supervision by a registered nurse, advanced home health

271

aides will be able to assist patients and allow them to live

with dignity in their homes and provide support to

family caregivers who are responsible for caring for their

loved ones.

Proposal: Ensure the Safety of Child Products

The Child Safe Products Act seeks to regulate the

use of chemicals in the manufacture of childrens

products. New York has been a national leader in

protecting consumers from using unsafe products. To

ensure that we protect our children from unsafe

products, the Governor will work with the Legislature to

adopt the Child Safe Products Act which will phase out
the use of specific chemicals of concern in children's
products.

Proposal: Expand Farm to School Partnerships to

Help Farmers and Students
New York public schools serve 400 million meals

annually to nearly three million children. 265 According to

a 2012 survey, nearly three-quarters of New York school
food service directors agree that locally procured foods
are healthier for students; yet one quarter of them have
never procured locally and want to learn how.
272

266

To

increase the amount of high quality food that reaches our

childrens school lunch trays, the Governor launched the

$350,000 New York State Farm to School Competitive

Grants Program in 2015 to increase the capacity of six
schools to purchase from local farms.
To

expand

on

these

efforts,

at

the

recommendation of the Anti-Hunger Task Force, the

Governor proposes a second $250,000 round of grants

and will expand NY Thursdays, a program that

increases local sourcing in public school food programs

through commitments by school districts to source local

food for school lunches every Thursday.

273

10.

ETHICS REFORM

Governor Cuomo has been fighting for ethics

reform since taking office in 2011. In his first year as

Governor, he led the effort to enact the comprehensive

Public Integrity Reform Act of 2011 to increase
transparency and accountability in Albany. This robust
set of reforms required state officials to make

unprecedented disclosures of their income, assets, and

external clients; created a public database of all

lobbyists; strengthened lobbying restrictions; and

274

required public officials to forfeit their pensions when

convicted of a felony related to public office. It also

established a new Joint Commission on Public Ethics
(JCOPE) to oversee the Executive, the Legislature, and
lobbyists.

New Yorkers deserve a government they can trust.

Governor Cuomo has been fighting for ethics
reform since taking office in 2011.

The 2015-2016 State Budget included additional

measures to further advance ethics reform, including

new requirements to ensure that public officials disclose

the details of all outside income in excess of $1,000

including the source of the income and the actual

services performed and whether there is any
connection to the state government or the office they

hold. The budget significantly expanded the Lobbying

Law to cover municipalities with a population of 5,000 or

more, from 50,000 previously. The Budget also

introduced Per Diem reform that will prevent fraud by

establishing stronger claim verification requirements

275

and creating a publicly accessible website showing

members reimbursement and travel. Campaign funds

have been barred for personal use, and the requirement

to disclose independent campaign expenditures has

been expanded from 30 to 60 days before Election Day.

The Governor also increased the JCOPE budget by 27

percent and provided for funding to modernize the

Commissions technology systems.

This year, Governor Cuomo proposes the most

ambitious ethics and good government reform package

ever to restore New Yorkers confidence in their

representatives. The Governor will propose closing the

LLC Loophole, limiting outside income for members of

the New York State Legislature, devising a system for

publicly financing campaigns, enacting comprehensive
reforms to the Freedom of Information Law (FOIL) to
increase

transparency,

requiring

any

legislators

convicted of corruption to forfeit their New York State

pensions, strengthening the enforcement powers of

JCOPE, and enacting new ethics and campaign finance

reporting requirements. The Governor also proposes

authorizing an expert commission to prepare for a
constitutional convention and proposes voting reforms

to institute early voting and automatic voter registration

276

to enable more New Yorkers to have their voices heard

on Election Day.

Proposal: Close the LLC Loophole and Increase

Campaign Disclosure
In order to preserve open, free, and fair elections

that are not captured by wealthy public interests, state

law limits the amounts that both corporations and
individuals may donate directly to state candidates. 267

However, because of a quirk in the way that present

election law is interpreted, wealthy individuals and

corporations are able to use Limited Liability Companies

(LLCs) to avoid New Yorks campaign donation limits.
This LLC Loophole in campaign finance law has
allowed

special

interests

to

circumvent

both

contribution limits and disclosure requirements. The

Governor proposes closing the LLC Loophole for all

elected officials. It is our responsibility to even the

playing field so that rich and poor New Yorkers alike

have their voices heard in our political process.

277

Currently, campaigns must disclose campaign

contributions

only

twice a year and at

The Governor proposes
closing the LLC Loophole
for all elected officials. It
is our responsibility to
even the playing field so
that rich and poor New
Yorkers alike have their
voices heard in our
political process.

certain intervals before

elections. In our digital

era, money and news
move lightning-fast yet
laws

on

campaign

contributions have not

caught up to the reality

of our times. To provide

greater transparency in

campaign contributions, the Governor proposes that

candidates disclose campaign contributions to the Board
of Elections every 60 days.

Proposal: Limit Outside Income for Legislators

The Legislatures part-time structure allows

professionals from diverse industries and backgrounds

to serve the public. This offers the distinct advantage of

legislators who are not career politicians but, instead,

have a diverse set of interests and experiences. To strike
the right balance, the Governor proposes that New York
278

State adopt limits on outside income for legislators akin

to the limits our federal government places on

legislators outside income. The proposal will limit state

legislators outside income to 15 percent of their base

salary.

Proposal: Adopt a Voluntary Public Campaign

Financing System
Current election laws favor wealthy donors and

special interests. Simply put, there is no incentive for

candidates to rely on ordinary, everyday people for

campaign donations. In the 2006 elections, for example,

candidates in New York relied less on small donors ($1$250) than in all but three other states nationwide. 268

The only comprehensive way to fix this problem and

restore the voices of all New Yorkers is to adopt a
voluntary

public

financing

system

for

political

campaigns that focuses on matching funds from small

donors. To accomplish this goal, the Governor proposes
a voluntary public campaign financing system.

Proposal: Enact Other Campaign Finance Reforms

Unlike federal law, New York allows unlimited

contributions to party housekeeping accounts by

individuals and corporations.
279

These accounts are

supposed to be used for non-campaign party activities,

but they serve as a backdoor for big money to influence

political races.

Our current system also allows

intermediaries of campaign contributors, known as

bundlers, to pass large groupings of individual

contributions to campaigns and gain political influence
without disclosing their identities.

The Governor

proposes to fix both issues by placing a $25,000

contribution limit on housekeeping accounts and

requiring bundlers identities to be disclosed.

Proposal: Promote Transparency through New

Reforms to FOIL
The New York Freedom of Information Law

(FOIL) governs the publics right to access government

records and provides transparency for citizens into the

workings of state government. The Governor proposes a

comprehensive reform of FOIL to improve transparency

and promote openness in state government. But

transparency cannot just be limited to the Executive, and

therefore the Governor proposes that FOIL apply equally

to the Legislature. Additionally, the Governor proposes

that both FOIL and the states open meetings law apply

to both JCOPE as well as the Legislative Ethics

Commission to further ensure transparency and
280

accountability and enhance public confidence in our

government.

Proposal: Require Legislators Convicted of

Corruption to Forfeit Pensions
It is only fair to taxpayers that public servants

who are convicted of corruption should not continue to

collect a pension earned during public service.
Legislators who violate their duty to the people of New
York should not continue to be paid by the people of New

York in any way. The Governor proposes the adoption of

a joint resolution that will require pension forfeiture

after a legislator is convicted of a crime related to their

public office, regardless of when that legislator was
elected to office.

Proposal: Increase JCOPE Transparency and

Enforcement and Strengthen Ethical Requirements
for Lobbyists
The JCOPE Review Commission issued a report in

2015 that detailed multiple changes to enable JCOPE to

do its job better. 269 In response, the Governor proposes

a package of much-needed changes to JCOPE to increase

transparency and enhance its enforcement powers.

281

All public officers are required to file Financial

Disclosure Statements (FDS), but good government

groups and the public alike have called for strengthening

these

disclosure

requirements.

Governor

Cuomo

therefore proposes legislation that would authorize

JCOPE staff to seek documents in support of statements

made on the FDS, increase enforcement authority against

public officers who fail to comply with JCOPE audits, and

create District Attorney oversight over those who

willfully submit deceptive financial information on the

FDS. This legislation would also eliminate the categories

of value on the FDS to require public officers to report

actual amounts. Finally, this legislation would impose
financial penalties for all violations of the Public Officers

Code of Conduct contained in Section 74 of the Public

Officers Law, and would create accessory liability to

allow JCOPE to fully prosecute persons who aid and abet

violations of the Public Officers Law.

Proposal: Convene a Constitutional Commission

As Franklin Delano Roosevelt once said, the

ultimate rulers of our democracy are not a President or

senators and congressmen and government officials, but

the voters of this country. The New York Constitution

282

provides that, every 20 years, New Yorkers must vote by

referendum on whether to hold a convention to amend

the state constitution. 270 The next referendum will take

place in 2017, and the stakes could not be higher. From

ethics enforcement to the basic rules governing day-to-

day business in Albany, the process of government in

New York State is broken. Governor Cuomo believes a

constitutional convention offers voters the opportunity
to achieve lasting reform in Albany. The Governor will

invest $1 million to create an expert, non-partisan

commission to develop a blueprint for a convention. The
commission will also be authorized to recommend fixes
to the current convention delegate selection process,
which experts agree is flawed.

Proposal: Early Voting in 139 Locations

New York has 19.8 million residents. 271 Only 11.7

million New Yorkers are registered to vote. 272 In the last

non-presidential election year, only 29 percent of

registered voters participated less than one in three. 273

In the last presidential election, only 53.6 percent of

registered voters participated. 274 New York ranked 44th

in the nation for voter turnout in the 2012 presidential

283

election. 275 Research has shown that scheduling conflicts

with work or school and being too busy are some of the

main reasons voters cite for not participating. 276 As

Lyndon Johnson said, The vote is the most powerful

instrument ever devised by man for breaking down

injustice. Governor Cuomo is committed to making

reforms that ensure fairness and increase participation

in New Yorks democratic system.

According to the Brennan Center, early voting

leads to shorter lines on Election Day, early identification

and correction of registration errors, and greater access
to voting. 277 Currently, New Yorkers can vote early via

absentee ballot, but only if s/he meets certain

qualifications such as being absent from his or her
county on Election Day or being unable to get to the polls
due to a disability. For many working New Yorkers, it can
be difficult to get to the polls on Election Day.

284

Thirty-seven states and the District of Columbia

already allow voters to cast ballots in person, before

Election Day. 278 To increase voter participation,
Governor Cuomo proposes legislation that will allow

New Yorkers to vote early in all elections. This legislation

will require every county to offer residents access to one

early voting polling place that will allow residents to vote

for 12 days leading up to Election Day. Voters will have

at least eight hours on weekdays and five hours on

weekends to cast early ballots. Counties must have one

early voting polling site
for
To increase voter
participation, Governor
Cuomo proposes
legislation that will
allow New Yorkers to
vote early in all
elections.

every

50,000

residents and the bi-

partisan county boards of

elections will determine

the specific location of

early

places,

voting

polling

subject

to

standards of convenience

and accessibility. Early voting will increase participation

and make our elections more inclusive and democratic.
Proposal: Automatic Voter Registration
285

Our voter registration system is outdated and

makes it difficult for people to participate. Paper

applications can introduce errors to the voter rolls, and

inaccurate registrations sometimes lead to voters being

turned away at the polls. Governor Cuomo is committed

to modernizing the voter registration system. Voter
registration should be a presumption, not a hurdle.

This year, the Governor will make New York the

third state in the nationand the first on the East

Coastto adopt automatic voter registration at the

Department of Motor Vehicles (DMV). 279 Citizens can

already register to vote at the DMV, but the current

process is unnecessarily onerous, requiring a potential

voter to include additional voting information in their

application for a DMV service. Under the new system,

unless a DMV user opts out, the information used in any

DMV application will be automatically sent to county

boards of elections to register the applicant or update
registration information. New Yorkers who do not wish

to register to vote can simply check an "opt out" box. This

change will help maintain accurate voter rolls and
facilitate New Yorkers' participation in elections.
286

Proposal: Embrace Good Government and

Transparency
For years, good government groups have

clamored for more transparency in state finances.

Governor Cuomo therefore proposes legislation that will

allow concerned taxpayers from across the state to

access more information about where and how money
flows from the state to private citizens.

The Office of the State Comptroller (OSC) and the

Attorney General (AG) already have various powers to

undertake audits and investigations regarding the use of

state funds. However, under current practice, OSC and

the AG do not coordinate when they are auditing state

vendor contracts with private businesses. This should
change.

The Governors legislation would therefore

direct the AG, OSC, and the Office of General Services to

conduct a study and make recommendations regarding

initiatives that would better enable the public to track
state contracts.

Proposal: Reform Lobbying Laws

Our lobbying laws must be strengthened to close

existing loopholes and enhance enforcement. This

legislation will require political consultants who advise
287

elected officials to register as lobbyists, and will repeal

the exclusion for activities of commission salespersons
from the definition of lobbying. Further, the Governor

proposes legislation that will impose a $10,000 penalty

on a lobbyist who fails to comply with an audit by JCOPE,

impose financial penalties for already-illegal contingent

fee agreements for lobbyists, and require mandatory

electronic filing so that all lobbyists would also be

subject to federal wire fraud charges for misstatements.

288

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98 Water Research Foundation and Water Environment Research
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99 New York State Department of Environmental Conservation
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100 New York State Energy Research and Development Authority
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102 New York State Energy Research and Development Authority
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105 United States Environmental Protection Agency (2012).
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106 Feeding America (2015). Map the Meal Gap 2015, New York.
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107 New York State Department of Environmental Conservation
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108 New York State Office of Parks Recreation and Historic
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109 New York State Division of Homeland Security and Emergency
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111 United States Government Accountability Office (2010).
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New Yorks pioneering grants portal is available at

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116 Anisfeld, E., Sandy, J., Guterman, N. (2004). Best Beginnings: a
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117 Brookings Institution (2011). Missed Opportunity: Transit and
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118 Ways to Work is a nonprofit community development
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119 Feeding America (2015). Map the Meal Gap 2015. Retrieved
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120 Calculations by the New York State Office of Temporary and
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121New York State Office of Temporary and Disability Assistance
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122 Food Research and Action Center. Roadmap to Ending Hunger:
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123 Estimates provided by the New York State Office of Temporary
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124 New York State Department of Health (2015). About the New
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125 Food Research and Action Center (2008). Access and Access
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126 Discharge numbers from New York State Office for Children and
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115

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128 Dworsky, Amy et al (2014). Supporting Youth Transitioning out
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129 National Child Abuse and Neglect Data System (NCANDS)
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130 U.S. Department of Health and Human Services, Administration
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131 Finkelhor, Turner, Ormrod, & Hamby (2009). Violence, Abuse,
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132 Centers for Disease Control (2014). Understanding Child
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133 New York State Department of Corrections and Community
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134 Jiffy Lansing, M.C. Bradley, Matthew Stagner (2013). The Office
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135 Greg Berman and Robert V. Wolf (2014). Government, Law, and
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136 New York State Division of Criminal Justice Services (2014).
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137 The RAND Corporation (2013). Evaluating the Effectiveness of
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138 DOCCS Program, Planning, and Research Unit. DOCCS Data Files
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139 Leslie Brody (2015). The Wall Street Journal. Prison vs. Harvard
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140 DOCCS Program, Planning, and Research Unit. DOCCS Data Files
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141 United States Department of Justice Bureau of Justice Statistics
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142 As an example of this, the Last Mile, a California-based nonprofit
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143 United States Department of Justice Bureau of Justice Statistics
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144 New York State Unified Court System (2015). Criminal History
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145 New York State Bar Association (2012). Sealing Records of
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146 Office of Governor Andrew M. Cuomo (2015). Governor Cuomo
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in Deaths of Civilians. Retrieved January 10, 2016, from
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147 Governor Andrew M. Cuomo (2015). New York Post. How New
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148 Tom R. Tyler and Jeffrey Fagan (2008). Ohio State Journal of
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149 Police Executive Research Forum (2014). U.S. Department of
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150 Please refer to New York Criminal Procedure Law (CPL)
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151 The other states are Connecticut, Mississippi and Missouri.
Mary T. Phillips (2012). New York City Criminal Justice Agency, Inc
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152 Pretrial Justice Institute (2015). Pretrial Risk Assessment:
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153 The Laura and John Arnold Foundation (2014). Results from the
First Six Months of the Public Safety Assessment Court in
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154 New York Civil Liberties Union (2015). Testimony Regarding
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155 New York State Bar Association (2015). June 2, 2015: Statement
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157 Crystal Garland, Jessica Nickel, Leah Kane (2009). Council of
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158 Scott Paltrowitz (2013). Correctional Association of New York: A
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159 Frohlich, Thomas C. (2015). USA Today. States with Widest Gaps
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160 New York State Department of Labor. Minimum Wages.
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161 New York State Department of Labor (2015). Order of Acting
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162 New York State Department of Labor (2015). Hospitality
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163 New York State Department of Labor (2015). Occupational
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164 New York State Department of Labor (2016). Calculation of fulltime minimum wage at $9.00 hourly for a 40-hour work-week and
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156

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166 New York State Department of Labor. Analysis of U.S. Bureau of
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167 New York State Division of the Budget. Calculations based on
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168 New York State Department of Labor. Calculation based on
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169 The 1970 minimum wage adjusted for the rate of inflation
through 2021, and for regional cost of living differences, is
estimated at $16.05 in New York City and $14.41 for the rest of the
state. New York State Division of the Budget calculation.
170 Daniel Aaronson, Sumit Argawal, and Eric French (2011). The
Spending and Debt Responses to Minimum Wage Increases.
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171 New York State Department of Labor. Analysis of U.S. Bureau of
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172 Dale Belman and Paul J. Wolfson (2014). The New Minimum
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text=empl_research. Also see Hristos Doucouliagos and T. D.
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173 Ben Wolcott (2014). Job Creation Faster in States that Raised
the Minimum Wage. Center for Economic and Policy Research.
Retrieved January 8, 2016, from
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174 Arindrajit Dube, T. William Lester, and Michael Reich (2011). Do
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175 Housing and Urban Development. (2015). HUD Point in Time
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176 New York State Office of Children and Family Services. (2014).
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177 New York State Office of Temporary Disability and Assistance.
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178 NYC Office of Mayors Operation. (2015). Department of
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179 Womens Bureau, United States Department of Labor (2013).
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http://www.dol.gov/wb/factsheets/qf-laborforce-10.htm.
180 The White House Council of Economic Advisors (2014). The
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181 Family Medical Leave Act, 29 U.S.C. 2612(c)
182 Klerman, Jacob Alex; Daley, Kelly; and Pozniak, Alyssa of ABT
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https://www.dol.gov/asp/evaluation/fmla/FMLA-2012-TechnicalReport.pdf.
183 The White House Council of Economic Advisors (2014). The
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185 Rhee, PhD., Nari, and Llana Boivie (2015). National Institute on
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186 David John and Gary Koenig, (2015). AARP Public Policy
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187 New York State Department of Labor. Chart 1: Private Sector Job
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http://www.labor.ny.gov/stats/pressreleases/overview.pdf.
188 New York State Department of Labor. Table 2: Number of
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2016 from
http://www.labor.ny.gov/stats/pressreleases/prtbjd.pdf.
189 New York State Department of Labor. Chart 1: Private Sector Job
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http://www.labor.ny.gov/stats/pressreleases/overview.pdf.
190 ReadyNation. Closing the Job Skills Gap with New York Workers
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191 Executive Office of the President, National Science and
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192 Executive Office of the President, National Science and
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193 U.S. News (2014). Skills Gap Leaves Thousands of STEM Jobs
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184

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194 New York State Department of Labor. Analysis of Bureau of

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195 New York State Department of Labor (2015). Long term
Occupational Employment Projections. Retrieved on January 7,
2016 from http://labor.ny.gov/stats/lsproj.shtm.
196 The Workforce Innovation and Opportunity Act is a
reauthorization of the Workforce Investment Act (WIA) of 1998.
The purpose of WIOA is to help job seekers access employment,
education, training, and support services to succeed in the labor
market and to match employers with the skilled workers they need
to compete in the global economy. U.S. Department of Labor.
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https://www.doleta.gov/WIOA/Overview.cfm.
197 FutureWorks Systems (2015). WIA Dashboards. Retrieved
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198 U.S. Department of Labor (2015). Training and Employment
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https://wdr.doleta.gov/directives/corr_doc.cfm?DOCN=6840.
199 FutureWorks Systems (2015). WIA Dashboards. Retrieved
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http://www.wiadashboard.org/Workforce_Investment_Act_Perfor
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200 Reflects an estimated annual average derived from NYSDOL
analysis of customer records in the New York Employment Services
System (NYESS) case management system. Analysis conducted by
NYSDOL January 11, 2016.
201 New York Apprenticeship and Training Council (2015).
Transcript of the September 29, 2015. Retrieved January 7, 2016
from http://nysdol.granicus.com/MediaPlayer.php?clip_id=70.
202 New York State Department of Labor. Labor Force and
Unemployment Data (November, 2015). Retrieved January 11,
2016, from http://www.labor.ny.gov/stats/LSLAUS.shtm.
203 Reflects an estimated annual average derived from NYSDOL
analysis of customer records in the New York Employment Services
System (NYESS) case management system. Analysis conducted by
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January and November unemployment rates. Retrievable at
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nty_rates.pdf.
205 New York State Department of Labor (2016). Analysis based on
Confirmation of Hire forms submitted by certified businesses and
customer records in the NYESS case management system for
certified youth.
206 New York State Department of Labor (2015). Earn While You
Learn: Become An Apprentice. Retrieved January 7, 2016, from
https://labor.ny.gov/formsdocs/factsheets/pdfs/P535.pdf.
207 U.S. Department of Labor. Pre-Apprenticeship Program.
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210 Public Law 109-148, 119 STAT. 2814 (December 30, 2005).
211 Public Law 111-347, 124 STAT. 3623 (January 2011).
212 42 U.S.C. 300mm61.
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216 72 Fed. Reg. 53014 (2007)
204

308

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237 New York State Department of Health (2014). Breast Cancer
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310

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242 Community Preventive Services Task Force (2010). Guide to
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243 Community Preventive Services Task Force (2010). Guide to
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244 New York State Department of Health (2015). Calculation based
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246 NYS Public Health Law 2781-a.
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247 New York State Department of Health AIDS Institute (2013). HIV
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248 New York State Department of Health (2015). New York State
HIV/AIDS Surveillance Annual Report: For Cases Diagnosed

311

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http://www.health.ny.gov/diseases/aids/general/statistics/annua
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249 New York State Department of Health (2013). AIDS Institute.
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l/2013/2013-12_annual_surveillance_report.pdf.
250MacDonell K, Naar-King S, Huszti H, and Belzer M (2013).
Barriers to Medication Adherence in Behaviorally and Perinatally
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251 Centers for Disease Control (2014). Understanding the HIV Care
Continuum. Retrieved January 10, 2016, from
http://www.cdc.gov/hiv/pdf/dhap_continuum.pdf.
252 New York State Cascade of HIV Care (2013). Ending the
Epidemic Dashboard NY. Retrieved January, 8, 2016, from
http://etedashboardny.org/visualizations/hiv-care-cascades/.
253 New York State Department of Health (2014). AIDS Institute.
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/sep_report.pdf.
254 New York State Department of Health (2014). AIDS Institute.
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/sep_report.pdf.
255 Lurie P, Jones TS, and Foley J (1998). Journal of Acquired
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ringe_for_Every_Drug_User_Injection_.9.aspx.
256 Patel, Vikram, et al. (2007). Mental Health of Young People: A
Global Public Health Challenge. Retrieved January 7, 2016,
from http://www.cliniquetransculturelle.org/pdf/lancet_2007_1.pdf.
257New York State Office of Alcoholism and Substance Abuse
Services (2012). Statewide Comprehensive Plan

312

2012-2016. Retrieved January 5, 2016, from

https://www.oasas.ny.gov/pio/commissioner/documents/5YrPla
n2012-2016.pdf.
258 New York State Office of Alcoholism and Substance Abuse
Services (2015). Client Data System.
259 Chapters 31-42 of the Laws of 2014.
260 New York State Department of Health (2015). AIDS Institute.
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261 Binswanger, Ingrid A. et al. (2007). New England Journal of
Medicine. Release from Prison: A High Risk of Death for Former
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262 US Food and Drug Administration (2013). Medication Guide:
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263 New York State Department of Health and New York State Office
of Alcoholism and Substance Abuse Services (2015). Internal Data
on Synthetic Cannabinoids.
264 Office of National Drug Control Policy (2013). Community Drug
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pdf.
267 Sections 14-114 and 14-116 of the Election Law.
268 Anthony Corrado, et al., Reform in an Age of Networked
Campaigns, at 24 (CFI, AEI, Brookings 2010).

313

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270 New York Constitution, article XIX, 2.
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269

314

FY 2017 Executive Budget

Governor Andrew M. Cuomo

Contents
Directors Message ...................................................................... 315

FY 2017 Executive Budget

1. Financial Plan Overview....................................................... 319

2. Revenue Actions and STAR ................................................. 331

3. Investing in New York ........................................................... 349

Program Overview

4.Economic Development .........................................................355

5. Education.................................................................................... 365

6.Environment and Energy .......................................................377

7.Health Care .................................................................................. 389

8.Higher Education ......................................................................403
9.Human Services .........................................................................417

10.Local Government ..................................................................427

11.Mental Hygiene .......................................................................441

12.Public Safety .............................................................................457

13.State Workforce ......................................................................465

14.Transportation ........................................................................473

Additional Information

15.Legislation Required for the Budget ..............................487

16. The Citizens Guide to the Executive Budget............. 499

DIRECTORS MESSAGE
New York States finances are in their best shape in

decades. Under the direction of Governor Cuomo, and as

a direct result of his policies, the massive deficits that
used to plague the budgeting process have been
eliminated and turned into operating surpluses used to

lower taxes and bolster reserves to the highest levels on

record.

Debt outstanding at the end of FY 2016 is on track to

be lower than when the Governor took office in 2011,

representing the first time in modern times that total

State debt has declined for four consecutive years. State

debt measured as a percent of personal income has
decreased from 6.0 percent in FY 2010 to 4.6 percent
today the most favorable debt to income ratio since

the 1960s. During this period of declining debt, the State

has still made major capital investments through use of

settlement funds and prudent debt management. This

Budget continues making targeted capital investments
for housing, health care, transportation and economic

development, while the ratio of debt to personal income

is expected to improve even further.
315

For the sixth year in a row, the Executive Budget is

balanced while limiting spending growth to two

percent. The Governors two percent State spending cap

has changed the very nature of the State Budget

process. For decades, revenue projections would define

the level of State spending. This practice has ended

under Governor Cuomo. No longer do we spend every

dollar that we bring in, instead leaving more money in

the hands of the people.

Because of the State's two percent cap, spending

growth has been constrained to sustainable levels that

do not outpace the growth in personal income,

improving New Yorks livability and competitiveness.

The spending cap allows the financial plan to better
weather financial volatility. The cycle of boom and bust
spending is over no longer does the State ramp up

spending in the good years, requiring cuts to programs

in the bad years.

Finally, the fiscal discipline required by the State

spending cap is driving innovation in government. New

York State agencies are working more closely together
than

ever

before,

streamlining

processes

and

eliminating waste, while improving services on which

people depend. New Yorkers have every right to expect
316

their government to be efficient and effective, and

government must honor the responsibility of being
entrusted with public resources.
Governor

Cuomo

has

instituted

fundamental

reforms that have reduced the cost of both State and

local government. From eliminating unsustainable

inflators in major State programs, to lowering pension
costs for all levels of government, to helping counties
comply with the property tax cap by relieving them of

future Medicaid growth, the finances of government in

New York State are on more solid ground.

The financial markets and employers have taken

notice of New Yorks financial turnaround. Private

sector investment is up, and New York now has the
most private sector jobs in its history. Standard and

Poors, Fitch, and Moodys, recognized New Yorks

outstanding financial performance by upgrading the

State to its highest credit rating since 1972. The State

now enjoys the second highest investment-grade credit

rating possible from all three raters on its general

obligation bonds, and S&P rates the State's Personal
Income Tax Bonds and Sales Tax Bonds at AAA, the
highest rating possible.

317

With our finances in order, this Budget makes a

significant investment in education, providing a record

level of support to our schools. It lowers taxes for small

businesses and provides tax credits to support

education and encourage employers to hire urban

youth. It prudently uses an additional $2.3 billion

windfall from monetary settlements with financial

institutions for time-limited investments. New York is

taking on long-overdue infrastructure projects that for

generations were held back by lack of confidence and

imagination.

During the last five years, Governor Cuomo has

rebuilt the States fiscal house. Now, under his bold

leadership, we are rebuilding the State itself. It is in the

very nature of New Yorkers to believe in the possibility

of a brighter tomorrow we are indeed built to lead.
Today, we step towards that future with confidence.

318

1.

FINANCIAL PLAN
OVERVIEW

Overview
Governor Cuomo has led a bipartisan effort with the

Legislature to enact five timely, fiscally responsible

budgets. The passage of the FY 2016 Budget marked the
first time since 1978 that New York has enacted five

consecutive on-time budgets. The Governors budgets

embrace the principle that State spending must grow

more slowly than the overall economy to leave more

money in the hands of the people and to discipline the

government to use its resources prudently. This

principle has been put into practice with the

establishment of the two percent spending benchmark

at the State level, and with the two percent property tax
cap at the local level.

The effort to rein in State government spending is

working. In the 50 years prior to Governor Cuomo

taking office, the annual State Budget grew faster than

income 60 percent of the time (or three out of every five

budgets), and spending over the entire period grew at

319

an average rate of approximately 7.0 percent, compared

to income growth of 6.2 percent. With the adoption of

the two percent spending benchmark, the unsustainable

trend has been reversed. Since 2011, State spending has

grown more slowly than income each year and will

again with the FY 2017 Executive Budget.

Importantly, the fiscal actions of the past five years

have reduced volatility from the budget-making

process. Rather than including large spending increases

in good economic times that cannot be sustained when

the economy slows, the past five budgets have been

disciplined, sustainable and affordable in the long term.

The budgets of the last five years have instituted

fundamental reforms that have reduced the cost of State

and local government in New York. These reforms
include:

Limiting the annual growth in State Operating

Funds to two percent;

Eliminating unsustainable inflators in major

programs;
Negotiating landmark collective bargaining
agreements that provide fair and affordable
wages and benefits;

Creating a new tier of fair and affordable pension

benefits, which is expected to save the State and
320

local governments more than $80 billion over 30

years;

Relieving localities of the growth in the Medicaid

program, and all its administrative costs, as a
way to help counties remain with tax cap;

Controlling and targeting new borrowing to keep

debt service affordable and within the States
debt limit; and
Setting aside more than $1 billion in reserves to
reduce debt and meet unforeseen rainy day
needs.

The combination of spending restraint and the

accompanying budget reforms have led to measurable

improvements in the States financial position.

General Fund deficits totaling tens of billions of

dollars have been eliminated and turned into
operating surpluses used to bolster reserves to
the highest levels on record.

Total State debt has declined in each of the last

three fiscal years, and will decline again in FY
2016. This is the first instance in modern times
that New Yorks debt has declined for four
consecutive years. Debt outstanding at the end of
FY 2016 is on track to be lower than when the
Governor took office in 2011. State debt
measured as a percent of personal income has
decreased from 6.0 percent in FY 2010 to 4.6
percent the most favorable debt to income
ratio since the 1960s and is expected to decline
annually over the plan period, even as the State
makes targeted capital investments for housing,
321

health care, transportation,

development.

and

economic

The accumulated GAAP-basis deficit of $3.5

billion inherited when the Governor took office
has been eliminated.

In the summer of 2014, all three major credit rating

agencies, Standard and Poors, Fitch, and Moodys,

recognized

New

Yorks

outstanding

financial

performance by upgrading the State to its highest credit

rating since 1972. The State now enjoys the second

highest investment-grade credit rating possible from all

three raters on its general obligation bonds (S&P rates

the States Personal Income Tax Bonds and Sales Tax
Bonds at AAA, the highest rating possible).

FY 2017 Executive Budget Highlights

The Executive Budget continues the disciplined

approach to fiscal matters that has defined the
Governors first five budgets. It proposes
recurring savings through targeted reforms, as
well as continuation of the spending controls and
cost-containment put in place in prior years.
Agency operations are generally expected to
remain at current levels across the Financial Plan
period. The projections for receipts and
disbursements continue to be based on
conservative assumptions.
322

The Budget again limits the annual growth in

State Operating Funds spending to two percent
or less, consistent with the spending benchmark
adopted in FY 2012. In addition, the Governor is
expected to propose, and the Legislature is
expected to enact, balanced budgets in future
years that continue to limit annual growth in
State Operating Funds to two percent or less.
An additional $2.3 billion windfall from
monetary settlements with financial institutions
is again set aside primarily for one-time
investments and reserves. The FY 2017
Executive Budget proposes using these
settlement proceeds for investments that
supplement
State
activities,
including
transportation ($900 million), homeless and
affordable housing ($640 million), and economic
development ($255 million). In addition,
settlements are used to increase funding for the
Environmental Protection Fund ($120 million),
create a toll credit for regular users of the
Thruway ($340 million), support the Empire
State Poverty Reduction Initiative ($25 million),
and promote municipal consolidation ($20
million).

323

The
combination
of
effective
budget
management and adherence to the two percent
spending benchmark in future fiscal years would
produce surpluses, based on current projections.
The Budget proposes a small business tax
reduction plan and several new and expanded
tax credits, which are sized to absorb much of
the surplus that would otherwise be expected to
occur if the State is successful in adhering to the
two percent spending benchmark in future
years. The following table summarizes the multiyear impact of the Executive Budget Financial
Plan on General Fund operations.

324

325

(121)

Initiatives/Investments

Tax Extenders/Credits

(24)

949

Converting the STAR benefit to a refundable credit will result in lower STAR spending with a comparable decrease in PIT receipts. This
change has no impact on the STAR benefits received by homeowners.

114

(214)
4,575

533

(236)
3,234

(298)

(512)

(524)

100

(424)

(696)

88

2,480

(357)

1,515

(4,205)

FY 2020

Before actions to adhere to the 2 percent benchmark.

Savings estimated from limiting annual spending growth in future years to 2 percent (calculation based on current FY 2016 estimate). The
Governor is expected to propose, and negotiate with the Legislature to enact, a Budget in each fiscal year that restricts State Operating
Funds spending growth to 2 percent. The "Surplus/(Gap)" estimate assumes that all savings from holding spending growth to 2 percent are
made available to the General Fund.

1,650

17
n/a

(298)

(534)

(34)

164

130

(753)

152

2,259

40

1,698

(4,414)

FY 2019

EXECUTIVE BUDGET SURPLUS/(GAP)

Adherence to 2% Spending Benchmark2

(298)

(322)

(4)

(44)

(48)

(381)

167

2,124

145

2,055

(2,802)

FY 2018

17

Tax Actions

Small Business Tax Rate Reductions

(55)

All Other*

(229)

439

Capital Projects/Debt Management

(284)

1,333

Local Assistance*

Tax Revisions

397

Resource Changes

2,048

Agency Operations

(1,781)

Spending Changes

MID-YEAR BUDGET SURPLUS/(GAP) ESTIMATE1

FY 2017

GENERAL FUND BUDGETARY BASIS SURPLUS/(GAP) PROJECTIONS

EXECUTIVE BUDGET
GAP-CLOSING PLAN
(millions of dollars)

Consistent with the Governors approach in

balancing his first five budgets, all of which
emphasized spending restraint, the Executive
Budget reduces spending in FY 2017 by $2
billion compared to prior projections. The
reductions reflect reestimates to spending based
on updated information, specific costcontainment proposals, and the prepayment of
FY 2017 expenses from excess resources
available in FY 2016.

o Agency Operations. Since the Governor took

office in January 2011, State Executive
agency operating costs have been held
constant through ongoing State agency
redesign and cost-control efforts. These
efforts
have
included
closure
and
consolidation of facilities to reduce excess
capacity; strict controls on attrition and
hiring; enterprise-wide consolidation of
procurement, information technology, and
workforce management functions; and a
range of operational measures to improve
efficiency. The FY 2017 Executive Budget
generally holds Executive agency operations
at a fixed level of spending over the Financial
Plan period. Projected cost of employee
health insurance and worker compensation
has been increased based on market
conditions.

326

o Local Assistance. The Budget contains $64.3

billion in Aid to Localities funding. Medicaid
and School Aid are the States largest local aid
programs, comprising over 40 percent of the
State Operating Funds budget. School Aid is
increased by $2.1 billion over the next two
school years, including a $991 million (4.3
percent) increase for the 2016-17 school year
(SY 2017), bringing total aid to $24.2 billion
in SY 2017. Medicaid will grow at the indexed
rate of 3.4 percent, consistent with the
statutory index (Global Cap), to $17.7
billion. In total, State-funded Medicaid will
increase to $18.0 billion, including spending
outside the Global Cap. In addition, the State
continues to provide a substantial amount of
capital funding to improve and restructure
the States health care delivery system.
General Fund savings in the Executive
Budget are expected from, among other
things, aligning financial responsibility for
City University of New York (CUNY) Senior
Colleges with CUNYs governance (Currently,
New York City appoints one-third of the
CUNY board but provides virtually no
financial support to Senior Colleges). The
Budget proposes reinvesting $240 million
from this proposal to fund a potential
retroactive labor agreement with CUNY
employee unions. Other Executive Budget
savings include: targeted reforms to STAR,
medical malpractice, and early intervention;
the reinstitution of New York Citys
contribution to the annual growth in
Medicaid costs in recognition of the financial
327

capacity derived from the Citys exemption

from the Property Tax Cap; and updated cost
estimates for a range of State programs,
reflecting the impact of cost containment and
spending controls enacted in prior years.

o Debt Service. Savings are expected through

the prepayment of FY 2017 debt service in
the current year, continued use of
competitive bond sales, refundings, and
proactive management of debt issuances.

The forecast for tax receipts has been revised

over the multi-year Financial Plan based on
collections experience and an updated economic
forecast. Other significant resource adjustments
include downward revisions to expected Federal
resources to fund the mental hygiene system;
savings realized from the refunding in 2014 of
bonds funded exclusively from State sales tax
receipts paid to STARC; and tax receipt changes
from the proposed changes to the STAR
program.
The Budget proposes tax reductions for small
businesses, a new Education Tax Credit to
encourage private investments in education, an
expansion of the Urban Youth Jobs Program Tax
Credit, and a new Thruway toll credit. In
addition, the Budget extends several tax credits.

328

Annual Spending Growth

The Executive Budget holds FY 2017 annual

spending growth in State Operating Funds to 1.7

percent, below the two percent spending benchmark.

All Funds spending, which includes spending from

capital funds and Federal funds, is expected to increase

by 1.2 percent from the level estimated for FY 2016,
excluding extraordinary aid.

329

330
38,668

7,548

138,642
92,426

92,426
54,255
31,949
6,222

40,043

9,268

143,593
94,282

94,282
57,556
31,230
5,496

FY 2016

1,375

1,720

4,951
1,856

1,856
3,301
(719)
(726)

Annual

3.6%

22.8%

3.6%
2.0%

2.0%
6.1%
-2.3%
-11.7%

Annual %

39,737

9,681

145,303
95,885

95,885
59,195
31,184
5,506

FY 2017

(306)

413

1,710
1,603

1,603
1,639
(46)
10

Annual

-0.8%

4.5%

1.2%
1.7%

1.7%
2.8%
-0.1%
0.2%

Annual %

Excludes (a) Federal disaster aid for Superstorm Sandy, (b) additional Federal aid associated with Federal health care reform, and (c)
capital spending from the windfall monetary settlements with financial institutions.

Federal Operating Funds

Capital Projects Funds

ALL GOVERNMENTAL FUNDS

(EXCL. EXTRAORDINARY AID)
State Operating Funds

General Fund (excluding transfers)

Other State Funds
Debt Service Funds

STATE OPERATING FUNDS

FY 2015

(millions of dollars)

TOTAL DISBURSEMENTS

2. R

EVENUE ACTIONS AND

STAR
Overview

The FY 2017 Executive Budget continues efforts to

improve New Yorks business climate and lower taxes

on small businesses, simplify the tax code, and improve

the fairness of the tax system.

The Budget builds upon five years of tax relief

accomplishments, including: the enactment of a

property tax cap; the property tax freeze credit; the
lowest middle class income tax rate in 60 years;

elimination of the MTA payroll tax for more than

700,000 small businesses and the self-employed;

creation of a new family tax relief credit; tax cuts for

small businesses and manufacturers; reforms to

unemployment insurance and workers compensation

insurance; new START-UP NY tax free zones; and the

most important overhaul of corporate taxes in seven

decades including a reduction in corporate rates.

331

The additional tax relief proposed in the Executive

Budget is made possible by continued adherence to the

two percent spending limit.

Tax Cuts and Credits

The Executive Budget presents five tax cuts and

credits that will provide $444 million in direct tax relief

by FY 2018, growing to $594 million when fully

annualized.

Lower Taxes on Small Businesses. Small

businesses are the backbone of the States
economy, accounting for 43 percent of all private
sector jobs in New York. The Budget includes
reforms that will improve competitiveness for
small businesses, promote continued growth
within the small business sector, and help
further the expansion of the States economy.
Taxes are lowered both for small businesses who
pay via the corporate tax and those paying
through the personal income tax.

o Corporate: The Budget reduces the net

income tax rate from the current 6.5 percent
to 4 percent effective January 1, 2017 for
small businesses that file under Article 9-A.
For the purpose of this tax cut, the definition
of small business is a business with less
than 100 employees, with net income below
$390,000. To avoid a cliff and stay
consistent with how the dual rates are
332

treated under current law, the lower tax rates

would be available to small businesses with
net income below $290,000, and the rate is
phased up to the standard rate applicable to
businesses with net income of $390,000 or
more. Small businesses have traditionally
paid a lower rate than large corporate
taxpayers, but their current advantage would
disappear as corporate tax rates were
lowered effective January 1, 2016. This
change preserves the small business tax
advantage in the new lower-tax environment.
As an example, a small business taxpayer
with $285,000 in net income currently pays
$18,525 at a tax rate of 6.5 percent. Under
this proposal, the same taxpayer would pay
$11,400 when their corporate tax rate falls to
4 percent.

o Personal Income Tax: For small businesses

whose members pay taxes via the personal
income tax, the Budget provides new and
expanded tax cuts. The existing 5 percent
sole proprietor and farm business income
AGI subtraction, available to taxpayers with
small business income of $250,000 or less, is
increased to 15 percent. As an example, a
farmer or sole proprietor with net business
income of $240,000 in the current year and
an effective tax rate of 6 percent would
exempt 5 percent of his net income to save
$720. Under the proposed 15 percent
exemption, the savings would grow to
$2,160. In order to create tax parity between
small business types, the Budget also
expands this 15 percent AGI subtraction to
333

include members of partnerships, Scorporations, and LLCs as long as at least

some of their business income is derived
from a business entity with less than $1.5
million in NY gross receipts, and their total
business income from these sources is below
$250,000. As an example, if a taxpayer is a
member of a qualifying partnership with net
business income of $200,000, at an effective
tax rate of 6%, she would currently pay
$12,000 in tax. Under this proposal, 15
percent of her income would be exempted,
lowering her tax bill by $1,800.

Enhance the Urban Youth Jobs Program Tax

Credit. This program encourages businesses to
hire unemployed, disadvantaged youth, ages 16
to 24, living in the cities and towns with the
highest poverty and unemployment rates. The
annual allocation is increased from $20 million
to $50 million for hiring years 2016 and 2017, of
which $10 million annually may be allocated
statewide.

Establish Thruway Toll Tax Credits. To lower

the cost of traveling the New York State Thruway
for commuters and other heavy users, and to
lower the cost of bringing products to market for
businesses, the Executive Budget provides a
nonrefundable credit for Thruway tolls paid
electronically. Drivers of passenger vehicles who
spend at least $50, annually, and businesses and
commercial account holders who spend between
$100 and $9,999 in Thruway tolls, annually,
would receive a tax credit worth 50 percent of
tolls paid. For farmers, the Budget provides a
334

100 percent nonrefundable credit, regardless of

usage, for farm vehicle use on the Thruway. Over
the three years, drivers will save $340 million.

Establish the Parental Choice in Education

Act. The Executive Budget promotes educational
choice and philanthropy, and provides support
for teachers in recognition of their personal
spending for their classrooms. The new credits
provide $150 million in tax relief annually
through the Parental Choice in Education Act. An
aggregate total of $50 million is dedicated to a 75
percent nonrefundable credit for charitable
contributions to educational scholarship
organizations that provide support to low
income students seeking to attend a nonpublic
school or a public school outside of the students
district. Corporation franchise and individual
taxpayers may claim this credit, up to a
maximum annual credit of $1 million. Another
$20 million is dedicated to a credit for
contributions to public education entities, school
improvement organizations, and local education
funds, based on the same parameters as the
credit for contributions to educational
scholarship organizations. The Act also
establishes a refundable tax credit worth an
aggregate $70 million, against the personal
income tax, for up to $500 in tuition costs per
pupil for families with New York Adjusted Gross
Income below $60,000. Finally, recognizing that
many teachers spend their own money on
materials for their classroom, the Act creates a
refundable credit equal to the cost of
instructional supplies purchased by a public,
charter, or private school educator, up to a
335

maximum of $200, with an aggregate cap of $10

million.

Establish Additional Alcohol Beverage Tax

Tasting Exemptions and Production Credits.
The beer, wine and spirits industry has created
over 1,600 jobs since mid-2011. Further, wine,
beer, cider and liquor tastings are a tourist
attraction, helping bolster travel and exploration
of New York products. Alcoholic beverages used
in tastings are currently exempt from the sales
and use tax. The Budget expands benefits for this
industry by also: exempting any product used in
on-site tastings from the alcoholic beverage tax;
amending the beer production credit to also
include New York wine, liquor and cider
production; and by conforming provisions of the
Tax Law with the Alcoholic Beverage Control
Law to eliminate confusion and uncertainty.

Tax Simplification Actions

Simplify the Taxation of Remarketed Rooms.

The Budget streamlines the collection of sales
tax on remarketed hotel rooms. The purchase of
hotel room occupancies by room remarketers
such as Travelocity or Hotels.com would be
exempt from the sales tax when those purchases
are made from hotels for later resale to
consumers. Currently, room remarketers collect
the full amount of tax at the time of final sale to
the consumer, then request a refund from the
Department of Taxation and Finance for the
amount of tax already remitted to the hotel.
336

Enforcement Initiatives

Expand Jeopardy Assessments to the

Cigarette and Tobacco Tax. The Department of
Taxation and Finance currently has the authority
to issue a jeopardy (i.e. accelerated) assessment
when a delinquent sales tax vendor is at-risk of
fleeing the State. The Budget expands this
authority to the assessment of cigarette and
tobacco products. Currently, inter-state and
international bootlegging operators are avoiding
the payment of taxes by fleeing the State before
their assets can be seized through the normal
assessment process. This provision will support
the efforts of the Governors Cigarette Strike
Force, which was established in 2014 to curtail
bootlegging and its effects.

Tax Law Extenders

Extend the Empire State Commercial

Production Tax Credit for Two Years. This tax
credit covers 20 percent of qualified commercial
production costs in New York State that exceed
the average of the three prior years costs, plus
five percent of costs above $500,000 in the
Metropolitan Commuter Transportation District
(MCTD), and above $200,000 outside the MCTD.

Authorize an Additional $8 Million for the

Low-Income Housing Credit in Each of the
Next Five Fiscal Years. To help expand
affordable housing in New York, this program
337

provides credits to develop qualifying low

income housing projects. The Executive Budget
authorizes the Division of Housing and
Community Renewal to allocate an additional $8
million for the program in each of the next five
fiscal years, beginning April 1, 2016. Credits are
awarded in equal installments for a ten-year
period. The total amount of credits to be
awarded from this new authorization will be
$400 million over a multi-year period.
Extend the Hire-A-Vet Credit for Two Years.
To support veterans in their return to the
workforce, the Budget extends this credit for an
additional two years, adding the 2016 and 2017
hiring periods. The program provides a
refundable tax credit to employers equal to 10
percent of wages paid to a qualified veteran (up
to $5,000) and 15 percent of wages paid to a
disabled veteran (up to $15,000).

Extend the Clean Heating Fuel Credit for

Three Years. To support efforts to reduce
greenhouse gas emissions and to mitigate the
effects of climate change, the Executive Budget
modifies and extends, for an additional three
years, the Clean Heating Fuel credit. The current
credit is equal to one cent per percent of
biodiesel per gallon of biofuel purchased by an
eligible taxpayer. This proposal amends the
credit to apply only to biofuel blends that are
comprised of more than five percent biodiesel.
The credit is currently scheduled to expire on
December 31, 2016.
Extend the Alternative Fuels Tax Exemptions
for Five Years. The existing exemptions for e85,
338

CNG, hydrogen and B-20 from the sales,

petroleum business and motor fuel taxes are
extended for five years.

Extend the Excelsior Jobs Program for Five

Years. The Excelsior Jobs Program claims period
is extended through 2029, allowing Empire State
Development the ability to continue to offer a 10
year benefit period for the next several years.
Unused credits from previous years will be used
to fund the extension.

Extend the Credit for Companies that Provide

Transportation
to
Individuals
with
Disabilities for Six Years. The credit for
companies who provide transportation to
individuals with disabilities is extended for an
additional six years. The current credit,
scheduled to expire on December 31, 2016,
offsets up to $10,000 in costs associated with
upgrading vehicles, or purchasing qualifying new
vehicles, to accommodate the transportation of
disabled individuals.

Permanently Extend the Non-Custodial

Earned Income Tax Credit. The non-custodial
parent earned income tax credit is permanently
extended, providing parity with the existing
permanent earned income tax credit. The
current credit is scheduled to expire on
December 31, 2016. The credit complements the
regular EITC by allowing a lower credit for
parents who pay child support for a qualifying
child with whom they do not reside.

Permanently Extend Tax Shelter Reporting

Requirements. The requirement for taxpayers
339

to provide the Department of Taxation and

Finance with copies of federal tax shelter reports
is permanently extended.

Make Permanent and Update Certain

Modernization Provisions of the Tax Law. The
tax modernization provisions relating to
electronic filing, payment requirements, sales tax
compliance tools, and preparer penalties are
made permanent.

Extend Tax Preparer E-File Failure Penalties.

Expiring and expired tax preparer e-file failure
penalties are extended and tax law sections
regarding the regulation of tax preparers are
consolidated.

School Tax Relief (STAR) Program Actions

Convert the STAR Benefit into a Tax Credit for

New Homeowners. The STAR program is
simplified by transforming the exemption into a
refundable personal income tax credit, allowing
school districts to collect revenue without having
to wait for reimbursement from the State. The
change will only apply to first-time homebuyers
and homeowners who move. Under current law,
school districts collect reduced revenue as a
result of the STAR exemptions, and the State
compensates them for the cost of the exemption.
There is no change to the amount of the STAR
credit for taxpayers, only the mechanism used to
claim the credit.

340

Convert New York City Personal Income Tax

STAR Credit into a State Personal Income Tax
Credit. Currently, eligible NYC taxpayers apply
for a NYC STAR Personal Income Tax credit on
their NYS tax forms. The State reimburses the
City for the lost revenue. The Executive Budget
gives eligible taxpayers a credit against their
State PIT, as opposed to their City PIT, thereby
eliminating the need for the State to reimburse
the City government. This simplification effort
has no impact on the taxpayer and no impact on
revenues for the City of New York.
Cap Annual Growth in Basic and Enhanced
Exemption Benefit at Zero Percent. The
Executive Budget maintains FY 2017 STAR
exemption benefits at no more than their FY
2016 levels, rather than allowing them to grow
by up to two percent. The significant reduction in
property tax growth resulting from Governor
Cuomos property tax cap and the existence of
the Property Tax Freeze program has diminished
the necessity of growing the STAR benefit.

Allow Late Filing of Enhanced STAR Renewal

Applications and Senior Exemptions for Cases
of Hardship. The Budget allows late filing of
Enhanced STAR renewal applications for cases of
hardship (such as a serious personal illness or
hospitalization for the taxpayer or an immediate
family member), as late as the last day of the
interest-free period for payment of school taxes.
Additionally, the local option under the senior
exemption in RPTL 467 is expanded to allow a
late filing of renewal applications for hardship
341

up to the last day of the interest-free period for

payment of school taxes.

Make Participation in Income Verification

Program (IVP) Mandatory. Under current law,
participation in IVP is optional and seniors who
are not enrolled have to re-apply for their
Enhanced STAR benefits annually. The Budget
makes participation in the Income Verification
Program (IVP) for Enhanced STAR recipients
mandatory, therefore eliminating the annual
need to re-apply. IVP allows seniors who are reapplying for Enhanced STAR to authorize the
assessor to have their incomes verified in
subsequent years by the Department of Taxation
and Finance. This change will make it easier for
qualified senior citizens to keep their Enhanced
STAR exemptions.
Make Direct STAR Payments to Property
Owners in Appropriate Cases. The Budget
would allow the Commissioner of Taxation and
Finance to directly reimburse a STAR-eligible
property owner who didnt receive the STAR tax
savings to which she was entitled due to an
administrative error, and where no other
remedy is readily available.

Other Revenue Actions

Authorize Combative Sports. The Executive

Budget proposes to legalize and regulate
combative sporting events in New York State.
Currently, only New York State bans such events.
342

Amend State and Local Tax Law to Comply

with Newly-Adopted Federal Tax Regulations
on Aviation Fuel. All petroleum business tax
revenue imposed on aviation fuel is directed to a
new dedicated airport fund effective April 1,
2017 and the local sales tax on such aviation fuel
is repealed, effective December 1, 2017.
Conform to New Federal Tax Filing Dates. NYS
law is conformed to new federal tax filing
deadlines for certain business taxpayers. Recent
Federal legislation changed the federal tax filing
deadline for partnerships from April 15 to March
15, and from March 15 to April 15 for
corporations.

Eliminate Charitable Giving as a Factor in

Determining Domicile for the Estate Tax. The
Department of Taxation and Finances longstanding administrative practice of not using
qualifying charitable gifts of time or money as a
means of determining domicile for purposes of
calculating New York State estate tax liability is
codified.

Gaming Initiatives

Extend Certain Tax Rates and Certain

Simulcasting Provisions for One Year. The
pari-mutuel tax rate and other racing-related
provisions are extended for one year.

Extend the Video Lottery Gaming (VLG)

Vendors Capital Awards Program for One
Year. VLG operators are provided one additional
343

year to earn qualifying capital awards, which

encourage facility upgrades and improvements.

Extend Monticello Video Lottery Terminal

Rates for One Year. The higher commission rate
for the Monticello Video Lottery Terminal
Facility is extended for one additional year.
Amend the Upstate New York Gaming and
Economic Development Act for Technical
Changes. The Tax Law is amended to clarify that
the reduced tax rate paid by a Video Lottery
Terminal facility that competes with a
commercial gaming facility in the same region
only applies to the pro-rated portion of the year
when the competing commercial gaming facility
is open, and not for the whole of such opening
year. Additionally, the Budget clarifies that host
county payments are based solely on the net
gaming income of the specific commercial
gaming in that host community.

Provide for an Additional Commission for

Certain Video Lottery Terminal Facilities.
The intention of the Upstate Gaming and
Economic Development Act of 2013 was for a
Video Lottery Terminal Facility competing with a
commercial gaming facility to pay the same
percentage share of net gaming income to
support education. However, since the Finger
Lakes facility is not in the same gaming region as
the proposed LAGO facility, even though it is less
than 30 miles away, no such relief from the
Gaming Act would be provided to Finger Lakes.
The Budget corrects this inequity.
344

Increase Purse Surcharge and Regulatory Fee

to Support Racehorse Health and Safety.
Under current law, one percent of purse
enhancements is redirected from the VLT
program to fund costs associated with
recommendations made by the Task Force on
Racehorse Health and Safety report and 0.5
percent of regulatory fee is imposed on
thoroughbred, harness, off-track pari-mutuel
betting and simulcast racing. To fully fund the
recommendations of the Task Force and to
enhance Gaming Commissions capacity to
promote equine health and safety, the Budget
increases the amounts to 1.6 percent and 0.6
percent, respectively.
Adjust Timing of Reimbursement to Gaming
Commission of Per Diem Costs for Harness
Racing Judge and Starter. Licensed harness
tracks are required to pay the per diem costs for
one associate judge and one starter at each
harness track facility. Currently, the Gaming
Commission is required to notify the facility of
the per diem costs before the month begins,
which the track pays on the last business day of
the month. However, actual costs and race days
are not known until well after the month has
concluded, leading to a lengthy reimbursement
process.
The
reimbursement
timing
requirements of harness tracks are adjusted to
establish a more efficient requirement process.

Remove Restriction for a Single Lab Testing

Provider. Section 902 of the Racing Law dictates
that drug testing for race horses shall be
conducted by a state college within this state
345

with an approved equine science program.

Morrisville State College is the only college that
fulfills this statutory requirement. This
restriction is eliminated to allow the Gaming
Commission to entertain bids from other
facilities which might provide lab testing
services at a lower price.

Fee Actions

Extend Waste Tire Fee. In order to avoid cuts to

essential programs, the Budget extends the
Waste Tire Fee, which is scheduled to expire
December 31, 2016. This $2.50 fee, which has
been in place since 2003, funds the abatement of
waste tire sites and supports approximately 140
Department of Environmental Conservation
employees involved in critical solid and
hazardous waste cleanup activities.

Redirect DMV Funds to Dedicated Highway

and Bridge Trust Fund. The DMV Seized Assets,
Compulsory Insurance, Internet Point Insurance
Reduction Program and the Motorcycle Safety
Funds are consolidated into the Dedicated
Highway and Bridge Trust Fund (DHBTF). This
will increase efficiency and transparency by
reducing the overall number of DMV fund
sources, and improve programmatic flexibility.

346

REVENUE ACTIONS and STAR

(millions of dollars)

Tax Cuts and Credits

Provide a Corporate and Personal Income Tax Small Business Tax
Cut
Enhance the Urban Youth Opportunity Program Tax Credit
Establish Thruway Toll Tax Credits

General Fund
FY 2017 FY 2018
(1)
(444)
(298)

All Funds
FY 2017
FY 2018
(1)
(444)
(298)

(30)

(30)

(113)

(113)

Establish Education Tax Credits

Establish Additional Alcohol Beverage Tax Tasting Exemptions and

Production Credits
Tax Simplification Actions
Simplify the Taxation of Remarketed Rooms

(1)

(3)

(1)

(3)

Enforcement Initiatives
Expand Jeopardy Assessments to the Cigarette and Tobacco Tax

Tax Law Extenders

Extend the Empire State Commercial Production Tax Credit for Two
Years
Authorize Additional Credits of $8 Million for the Low-Income
Housing Credit for Each of the Next Five Fiscal Years

17
-

9
-

16
-

6
-

(8)

(8)

Extend the Hire-A-Vet Credit for Two Years

Extend the Clean Heating Fuel Credit for Three Years

Extend the Alternative Fuels Tax Exemptions for Five Years

(1)

(1)

(2)

(4)

Extend the Excelsior Jobs Program for Five Years

Extend the Credit for Companies who Provide Transportation to

Individuals with Disabilities for Six Years
Permanently Extend the Non-Custodial Earned Income Tax Credit

Permanently Extend Tax Shelter Reporting Requirements

Make Permanent and Update Certain Modernization Provisions of
the Tax Law
Extend Tax Preparer E-File Failure Penalties

18

18

18

18

School Tax Relief (STAR) Program Actions

Convert the STAR Benefit into a Tax Credit for New Homeowners Credit Portion
Convert the STAR Benefit into a Tax Credit for New Homeowners Spending Savings
Convert New York City Personal Income Tax STAR Credit into a
State Personal Income Tax Credit - Credit Portion
Convert New York City Personal Income Tax STAR Credit into a
State Personal Income Tax Credit - Spending Savings
Cap Annual Growth in Basic and Enhanced Exemption Benefit at
Zero Percent
Allow Late Filing of Enhanced STAR Renewal Applications and
Senior Exemptions for Cases of Hardship
Make Participation in Income Verification Program (IVP) Mandatory
Authorize the DTF Commissioner to Make Direct Payments of STAR
Tax Savings to Property Owners in Appropriate Cases

240
-

409
(98)

98

194

(87)

Other Revenue Actions

Authorize Combative Sports
Amend State and Local Tax Law for Consistency with Federal Tax
Regulations on Aviation Fuel
Conform to New Federal Tax Filing Dates
Eliminate Charitable Giving as a Factor in Determining Domicile for
the Estate Tax
Gaming Initiatives
Extend Certain Tax Rates and Certain Simulcasting Provisions for
One Year
Extend the Video Lottery Gaming (VLG) Vendor's Capital Awards
Program for One Year
Extend Monticello Video Lottery Terminal Rates for One Year
Amend the Upstate New York Gaming and Economic Development
Act for Technical Changes
Provide for an Additional Commission for Certain Video Lottery
Terminal Facilities
Increase Purse Surcharge from 1.0% to 1.6% and Regulatory Fee
from 0.5% to 0.6%
Adjust Timing of Reimbursement to Gaming Commission of Per
Diem Costs for Harness Racing Judge and Starter
Remove Restriction for a Single Lab Testing Provider
Fee Actions
Permanently Extend Waste Tire Fee
Redirect DMV Funds to Dedicated Highway and Bridge Trust Fund
TOTAL REVENUE ACTIONS and STAR

347

87

284

56

112

(185)
(98)
(87)
-

(1)

(1)

5
-

1
1
-

1
1
-

1
1
-

1
1
-

(1)
-

2
-

(3)
-

6
6

24
24

257

(25)

21

(596)

348

3. I

NVESTING IN NEW YORK

The State has received a total of $8.3 billion from

financial settlements with banks and insurers in FY

2015 and FY 2016, well beyond typical levels and what
was budgeted in the Financial Plan. Using these
resources, the FY 2016 Enacted Budget earmarked $5.4

billion for one-time purposes, including $4.6 billion for

capital projects to support economic development and

bolster some of the states most vital infrastructure. The

FY 2017 Executive Budget programs the remaining $2.3

billion of available settlement funds for critical timelimited priorities.

Putting Settlement Revenues to Work

The FY 2017 Executive Budget directs $2.3 billion in

unallocated settlement funds to additional projects that

will grow the economy over the long-term and position

every region of the state for growth. Settlement funds

will support transportation, housing, environmental

infrastructure, economic development and other capital

investments. These resources will support a wide array
349

of projects, from large-scale infrastructure projects and

complex

program

enhancements,

to

smaller

strategically critical needs in project funding. Specific

investments include:

Thruway Stabilization Plan ($700 million).

The Budget invests $700 million in Thruway
infrastructure, on top of last years commitment
of $1.285 billion. This two-year investment of
nearly $2 billion will support both the New NY
Bridge project and other transportation
infrastructure needs on the rest of the Thruway
system across the State. Further, it will enable
the Thruway to freeze tolls for all drivers until at
least 2020.

Thruway Toll Reduction Plan ($340 million).

The Budget effectively cuts tolls in half for New
York residents and businesses who utilize the
Thruway most often by creating a three-year
nonrefundable credit for Thruway tolls paid
electronically. The toll reduction would benefit
nearly one million passenger, business and farm
vehicles. Drivers of passenger vehicles who
spend at least $50, annually, and businesses and
commercial account holders who spend between
$100 and $9,999, annually, in Thruway tolls
would receive a tax credit worth 50 percent of
tolls paid. For farmers, the Budget provides a
100 percent nonrefundable credit, regardless of
usage, for farm vehicle use on the Thruway. The
program would begin on January 1, 2016 and
sunset December 31, 2018. Over the three years,
350

drivers will save $340 million, paid for with

settlement funds.

Transportation Capital Plan ($200 million).

The Budget funds an unprecedented $22 billion
multi-year transportation capital plan to
upgrade critical roads, bridges and other vital
transportation infrastructure throughout the
New York, especially Upstate. $200 million in
settlement funds will be allocated to DOT to help
fund the plan. The $22 billion plan includes $1
billion each for the BRIDGE NY and PAVE NY
programs to replace, rehabilitate, pave and
maintain state and local bridges and roads. It
also includes $500 million for the Extreme
Weather Infrastructure Hardening program,
which will make investments in roadways across
the state susceptible to flooding and other
extreme weather related events.
Homeless and Affordable Housing ($640
million). The Budget commits $640 million in
settlement funds towards the $20 billion
comprehensive multi-year investment in
affordable housing and services for individuals
and families who are homeless or at risk of
homelessness. Funding will be used to expand
efforts to create, improve, and ensure homeless
and affordable housing opportunities through a
statewide multiagency housing program, and to
support the States emergency homeless
response.
Environmental Protection ($120 million). The
Budget uses $120 million of settlement funds to
support
capital
projects
within
the
Environmental Protection Fund (EPF). Overall
351

funding for the EPF is increased to $300 million

the highest amount ever and more than twice the
Funds level when the Governor first took office.
The EPF offers wide ranging benefits to
communities around the state and plays an
important role in preserving the states natural
resources and habitats. It funds land acquisition,
farmland protection, waterfront revitalization,
municipal recycling, and local government
assistance to improve wastewater treatment
plants and municipal parks. It supports the
stewardship of public lands, including state
parks and millions of acres of public lands
throughout the state. Beginning in FY 2017, the
EPF will also support programs for greenhouse
gas management and resiliency.

Economic Development ($255 million). The

Budget includes $170 million in settlement funds
to support Upstate Revitalization Initiative
projects to help continue to restore economic
opportunity to regions across Upstate New York.
An additional $30 million is provided through
Empire
State
Development
capital
appropriations, for a total of $200 million. This
program, modeled on the Buffalo Billion
initiative and the existing structure of the
Regional Economic Development Councils
(REDCs), targets investment to economicallydistressed Upstate regions. These additional
funds are available to the four regions (North
Country, Capital District, Mohawk Valley and
Mid-Hudson) that were eligible for the first
round of the Upstate Revitalization Initiative but
were not a 2015 Best Plan Awardee. An
additional $85 million of settlement funds will
352

support other critically-needed economic

development or infrastructure projects in the
Budget to continue driving growth across New
York State.

Empire State Poverty Reduction Initiative

($25 million). The Budget includes $25 million
of new funding to significantly expand the antipoverty initiative, begun in 2015. Planning
grants totaling $5 million will be available in ten
communities with high concentrations of
poverty. In addition, $20 million will be available
for grants to match private sector and
foundation funding.
Municipal Consolidation ($20 million). $20
million in settlement funding is used to advance
and enhance programs that encourage local
municipal government consolidations. These
programs will help lower the cost of government
and reduce the burden placed on property
taxpayers.

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354

4. E

CONOMIC DEVELOPMENT

The FY 2017 Executive Budget continues Governor

Cuomos focus on the revitalization of Upstate regions,

job-creating programs and investing in key capital

projects across the State. This aggressive job-creation

agenda leverages the success of Governor Cuomos

regionally-focused economic development strategy to

create jobs, strengthen and diversify economies, and

generate economic opportunity across the State.

Overview
In the last five years, Governor Cuomo has

completely

redesigned

the

States

economic

development strategy through his Regional Economic

Development Councils (REDC). Economic revitalization
has been fast tracked by replacing New York States
traditional top-down development strategy with an

innovative approach that enables regional stakeholders

to develop long-term plans based on regional priorities

and unique assets. The REDCs have awarded nearly $4
355

billion for job creation and community development

projects that will create or retain over 200,000 jobs.

As part of this regional economic strategy, the

States unprecedented $1 billion investment in the

Buffalo area economy is helping to create thousands of
jobs and spur new investment and economic activity.
START-UP

NY,

the

groundbreaking

initiative

established in 2013 to transform SUNY and private

college and university campuses and communities

across the State into tax-free zones, is attracting new

businesses and encouraging existing businesses to
expand. To date, a total of 155 businesses have been
approved for START-UP NY participation and are

projected to create over 4,200 net new jobs and nearly

$221 million in investment.

Through the Upstate Revitalization Initiative (URI)

$1.5 billion was awarded to three Upstate regions

Central New York, the Finger Lakes and the Southern

Tier. Each region received $500 million over a multi-

year period to support transformative investments that

build upon its assets and leverage private sector capital

to create jobs and strengthen regional economies.

The Executive Budget builds upon this framework of

success and continues the Upstate Revitalization

356

Initiative (URI) to inject an additional $200 million of

State resources to drive revitalization in the North

Country, Capital District, Mohawk Valley and MidHudson regions. It also makes additional investments
through the successful public-private partnership

model developed by the SUNY Polytechnic Institute

Colleges of Nanoscale Science and Engineering (SUNY

Poly CNSE) targeted at leading-edge technologies and
industries of the future.

Proposed FY 2017 Budget Actions

Continue Upstate Revitalization. The Budget

includes an additional $200 million to support
Upstate Revitalization Initiative projects that will
further bolster economic opportunity to regions
across upstate New York. Modeled on the Buffalo
Billion initiative and the existing structure of the
Regional Economic Development Councils, this
initiative will target investment within a set of
economically-distressed upstate metropolitan
areas and their surrounding regions. By focusing
investment on infrastructure projects as well as
quality of life initiatives, Upstate New York is
becoming a better place to live, work, and visit.
These additional funds are available to the four
regions (North Country, Capital District, Mohawk
Valley and Mid-Hudson) that were eligible for
the first round of the Upstate Revitalization
357

Initiative but were not selected as a 2015 Best

Plan Awardee.

Support for Nano Utica. The Budget includes

$200 million to support a cutting edge, 360,000
square foot wafer fabrication facility to be
constructed at the Nano Utica site in Marcy. This
project is expected to generate more than 1,000
new jobs and attract over $2 billion in private
investment.

Support Regional Economic Development

Councils. In 2011, Governor Cuomo established
ten Regional Economic Development Councils
(REDCs) to develop long-term regional strategic
economic development plans. Since then, the
REDCs have awarded nearly $4 billion in State
funding through a competitive process to spur
job creation based on regional priorities. This
new strategy has resulted in 200,000 new or
retained jobs in New York.

The Executive Budget includes core capital

and tax-credit funding that will be combined
with a wide range of existing agency programs
for a sixth round of REDC awards. The Budget
continues to make resources available from
other State agencies to support community
revitalization and business growth consistent
with the existing Regional Council plans through
the Consolidated Funding Application process.
The core funding includes:
o $150 million to fund high value regional
priority projects; and

358

o $70 million in State tax credits set aside

from the Excelsior Jobs tax credit program to
fund regional priority projects.

Invest in Strategic Initiatives. The Budget

authorizes new funding for the following key
economic development projects:

o New
York
Power
Electronics
Manufacturing Consortium. The Budget
includes an additional $33.5 million towards
the States $135 million multi-year
commitment, to support the New York Power
Electronics Manufacturing Consortium to
develop and commercialize the use of wide
bandgap power electronic devices.
o Clarkson-Trudeau
Partnership.
An
additional $12 million is included in the
Budget to support the partnership between
the State, Clarkson University and the
Trudeau Institute to form a world-class
biotech enterprise and further establish the
North Country Region as a premier center of
biotechnology research and development.
o Brookhaven National Laboratory. The
Budget provides $50 million over 5 years to
support research facilities at the Brookhaven
National Laboratory in Stony Brook,
including $10 million in FY 2017.

o Buffalo
High-Tech
Manufacturing
Innovation Hub. $100 million over 10 years
is provided to support the development of
the Buffalo High-Tech Manufacturing
Innovation Hub at Riverbend, including $10
million in FY 2017.
359

o Albany Nano G450C. An additional $60

million over 4 years is allocated to fulfill the
States investment at the Albany Nano G450C
facility, including $15 million for FY 2017.

o Olympic Regional Development Authority

(ORDA) Capital Improvements. The Budget
includes $10 million in new capital funding
for ORDA, including $7.5 million for critical
maintenance and energy efficiency upgrades
to the Olympic and ski facilities, and $2.5
million appropriated from the Office of Parks,
Recreation and Historic Preservation budget
as part of the New York Works initiative.

o Economic Development Initiatives. The

$99 million New York Works Economic
Development Fund Program will provide
capital grants to support projects that
facilitate an employers ability to create new,
or retain existing jobs, or fund infrastructure
investments necessary to attract new
businesses or to expand existing businesses.

Launch Another Round of NYSUNY 2020 and

NYCUNY 2020. To build upon the success of the
initial Challenge Grants, the Budget includes
$110 million to launch a new round of NYSUNY
2020 and NYCUNY 2020. Priority will be given to
plans that use technology to improve academic
success, leverage public-private partnerships
through the START-UP NY program, and better
connect students to the workforce.
Support New York Open for Business. To
continue the enhanced marketing effort to
demonstrate the benefits of investing and doing
business in New York and to promote the States
360

tourism assets, $50 million will be appropriated

through Empire State Development for the Open
for Business initiative.

Expand and Promote Tourism. In FY 2017, the

States economic development agencies will
implement a $50.5 million tourism campaign to
attract visitors from around the world, a $5
million increase in funding from FY 2016. The
program includes a fourth round of $13 million
in competitive funding through the Market NY
initiative to support tourism marketing plans
and projects that best demonstrate regional
collaboration among counties to promote
regional attractions.

Other Budget Actions

Javits Center Expansion. The Governors 2016

economic development agenda includes a
proposal to dramatically expand and improve
the Jacob K. Javits Convention Center, by 1.2
million square feet, resulting in five times more
meeting and ballroom space. The project will
include construction of a truck marshaling
facility capable of housing hundreds of tractortrailers simultaneously to improve pedestrian
safety and local traffic flow. The Budget includes
legislation which would authorize design-build
contracting for this project to accelerate project
delivery and reduce cost.
Empire Station Complex. Governor Cuomo also
proposes to create the Empire Station Complex, a
$3 billion transformation of Penn Station and the
361

historic James A. Farley Post Office into a worldclass transportation hub. The complex will
feature significant passenger improvements,
including first-class amenities, natural light,
increased train capacity and decreased
congestion,
and
improved
signage
to
dramatically enhance the travel experience. The
project will be expedited by a public-private
partnership in order to break ground in 2016
and complete substantial construction within the
next three years. The Budget includes legislation
which would authorize design-build contracting
for these projects to accelerate project delivery
and reduce cost.
Fund the Innovation Hot Spots and
Incubators Program. The Executive Budget
authorizes $5 million in new funding to continue
to foster innovation by offering start-up
companies valuable business support services to
help commercialize academic research and
promote further collaboration between business
and academia.

Continue Commitment to Critical Economic

Development Investments. The Budget
includes nearly $46 million to support ongoing
economic development initiatives including the
New York State Economic Development Fund,
the Minority- and Women-Owned Business
Development and Lending Program, the Urban
and Community Development Program, the
Entrepreneurial Assistance Program, tourism
marketing initiatives, and international trade
efforts.
362

Support High Technology Grants. The

Executive Budget authorizes over $35 million to
support ongoing university-based matching
grants and other high technology and research
and development programs administered by the
Department of Economic Developments Division
of Science, Technology and Innovation.

Excelsior Jobs Program. The Budget includes

legislation that extends the Excelsior Jobs
Program claims period five years from 2024 to
2029 to provide Empire State Development with
the ability to continue offering a ten year benefit
period to eligible companies.

Department
of
State
(DOS)
Agency
Modernization. As the States general recording
officer, DOS is responsible for keeping all
corporate filing certificates and documents. The
Budget contains $3.7 million of one-time funding
for DOS to convert all of these corporate
documents to electronic images. Digitization will
improve ease of access for official corporate
documents available to businesses and the
general public while streamlining business
processes and alleviating DOS staffing pressures.

363

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5. E

DUCATION

The FY 2017 Executive Budget reflects the

Governors strong commitment to education through a

$2.1 billion increase in education aid over the next two

years. The Budget also commits to fully restoring the

GEA for every district by the SY 2018.

The Budget provides support for several key

initiatives, including $340 million to continue the

Empire State Prekindergarten program, an expansion of
prekindergarten

for

three-year-old

children,

the

conversion of high-need schools into community

schools, and increased funding for charter schools.

Together, these initiatives will continue to transform

public education across the State. Important initiatives

from prior years are also sustained, including significant
investments in prekindergarten and from the Smart
Schools Bond Act.

365

Overview
Public education in New York represents a

significant commitment of State and local resources.

With total State and local spending levels exceeding $60

billion, education is the largest area of State spending

and the largest component of local property taxes. This

is a reflection of New York States long-standing

commitment

to

provide

all

students

with

the

opportunity for a strong, rigorous education. In the last

four years alone, the Governor has enacted budgets

with school aid increases totaling $4.3 billion. The FY

2016 Budget included an additional $1.4 billion (6.1

percent) increase, bringing school aid funding to its

highest level ever at $23.5 billion.

The Executive Budget continues the progress made

during this administration to strengthen educational

offerings and increase access across New York. Building

upon

the

States

prekindergarten

for

first

investment

three-year-olds,

in

the

full-day

Budget

provides additional funding to expand prekindergarten

access for three-year-olds in the most vulnerable

districts. In addition, the Budget reflects the Governors

commitment to support the conversion of failing

366

schools into community schools. These initiatives, along

with programs already underway, will continue to

transform public education across the Statereaching
students

earlier,

providing more

flexibility,

and

ensuring that students have access to highly effective

teachers, programs and schools.

Support for Public Education

Statewide increases in school spending, State

support for education, and school property taxes have

combined to far outpace the rate of inflation over the

last ten years. New York public schools spend more per

pupil ($19,818) than any other state and 85 percent

above the national average.

Several recent initiatives have focused on improving

the States ability to expand educational opportunities

for young students and ensure all students are college
or career ready. These major initiatives include:

Prekindergarten
Programs.
The
State
currently spends over $785 million on public
prekindergarten programs for three- and fouryear-olds, serving nearly 120,000 students
statewide. The FY 2015 Enacted Budget
committed $1.5 billion over five years to support
the phase-in of full-day prekindergarten for four367

year-olds, with the majority of funds being used

to support the States prekindergarten expansion
in New York City. In addition, in December 2014,
New York received a $25 million grant award
($100 million over four years) from the United
States Department of Education to expand access
to full-day prekindergarten in high-need school
districts. Following that, the FY 2016 Enacted
Budget included $30 million to support the first
State-funded full-day prekindergarten program
for three year olds, while also allowing expanded
access for four-year olds.

Smart Schools Bond Act. In November 2014,

the Smart Schools Bond Act Referendum

proposed by Governor Cuomo was approved by
voters. The Smart Schools Bond Act provides $2
billion in funding to schools to reimagine our
classrooms and provide New Yorks students
with the technological resources, skills, and safe
learning environments necessary to succeed in
the evolving 21st century economy. Bond
proceeds will fund enhanced education
technology,
including
infrastructure
improvements to bring highspeed broadband to
schools and their surrounding communities and
the purchase of classroom technology for use by
students. Additionally, the Smart Schools Bond
Act will enable longterm investments in full-day
prekindergarten through the construction of
new prekindergarten classroom space, the
replacement of classroom trailers with
permanent classroom space, and hightech
school safety programs.
368

Summary of Spending
Change
Category

SY 2016
(millions)

SY 2017
(millions)

Dollar
(millions)

23,233

24,224

991

Total
Education Aid

Percent
4.3

Change
(millions)

Category of Increase
Reimbursement for Expense-Based Aids / Other

408

Gap Elimination Adjustment Restoration

189

Additional Foundation Aid

266

Community Schools Aid

Empire State Prekindergarten Program for Three-Year-Olds

Early College High Schools
QUALITYstarsNY

100
22
4
2

Total School Aid Increase

991

Proposed FY 2017 Budget Actions

The Executive Budget reflects the Governors

continued commitment to improved student outcomes

and builds upon the foundational work of prior years,

including the implementation of recommendations of

the New NY Education Reform Commissions Final

Action Plan.

In FY 2017, School Aid will continue to represent the

largest

State-supported

program,

369

accounting

for

roughly 29 percent of total General Fund spending. For

SY 2017, the Budget recommends $24.2 billion in total

education aid.

School Aid

The Executive Budget provides a $2.1 billion

increase in education aid over the next two years. The

Budget also commits to fully restoring the GEA for every

district by the SY 2018. For SY 2017, this growth

consists of a $991 million (4.3 percent) increase in

formula-based aids and competitive grants. The

increase reflects a Foundation Aid increase of $266

million and a $189 million Gap Elimination Adjustment

(GEA) restoration, including fully restoring the GEA for

approximately 200 higher need districts.

Empire State Prekindergarten

The Budget includes an additional $22 million

investment in prekindergarten to expand high quality

half-day and full-day prekindergarten programs to

three-year-olds in the highest need school districts. This

funding builds upon the States first investment in full370

day prekindergarten for three-year-olds included in the

FY 2016 Enacted Budget.

The State will also provide $5 million to support the

implementation of QUALITYstarsNY, a quality rating

and improvement system intended to ensure that we

offer our youngest children the highest quality

programs possible. This is an increase of $2 million
from the States first investment in QUALITYstarsNY in
the FY 2016 Enacted Budget.

Community Schools
The Budget continues the Governors push to

transform New Yorks 144 failing schools. Pursuant to

SED regulations, a school is identified as failing if it

has been in a monitored or accountability status for
the previous three school years and has been among the
bottom five percent in the State in English Language
Arts (ELA) and math performance or has a graduation
rate below 60 percent.

The FY 2016 Budget committed $75 million to

support the turn-around efforts in schools identified as

persistently failing, meaning they have been in the
lowest accountability status for a decade. The FY 2017
371

Executive Budget provides an additional $100 million to

expand this initiative, $75 million of which is

specifically allocated amongst 17 school districts with a

failing or persistently failing school. The remaining $25

million will be available to other high-need school

districts statewide that do not have a failing or

persistently failing school. Schools will be able to use

these funds for community school coordinators, before-

and after-school mentoring services, summer learning

activities, health and dental care referrals and

connections, and other strategies to maximize student

achievement.

Charter Schools
The Executive Budget increases statewide funding

for charter schools by $27 million so that they can

continue to innovate, recruit high-quality teachers and

staff, and provide a strong educational option for
students and families. Further, the Executive Budget

unfreezes the charter school tuition formula in New

York City to allow local funding amounts to be reflective

of the current economic environment. In addition, the

372

Budget makes permanent the calculation of rental aid

for New York City charter schools.

Early College High Schools

New York has more than 65 early college high

school programs with more than 7,000 students

enrolled. These programs allow students to get a jump

start on college by providing opportunities to earn

college credit. To build upon the success of the existing

programs, the FY 2017 Executive Budget commits $4
million to expand the States early college high school
and career and technical education programs.

Other Budget Actions

Establish the Parental Choice in Education

Act. The Executive Budget promotes educational
choice and philanthropy, and provides support
for teachers in recognition of their personal
spending for their classrooms by creating three
new tax credit programs totaling $150 million
under a Parental Choice in Education Act.
o The Education Scholarship and Program
Tax Credit. This program provides $50
million in credits to support scholarships for
low- and middle- income students to attend a
non-public school or a public school outside
373

of their district, and $20 million in credits to

support
public
school
educational
improvement
programs
such
as
prekindergarten and after-school activities.
Corporation franchise and individual
taxpayers who make donations will receive a
nonrefundable credit equal to 75 percent of
their authorized contributions, up to a
maximum annual credit of $1 million.

o The Family Choice Education Tax Credit.

This credit provides $70 million in
reimbursements to families with incomes
below $60,000 per year for eligible tuition
expenses paid to elementary and secondary
schools in New York State. Families would be
eligible to claim a credit of up to $500 per
student.

o The Instructional Materials and Supplies

Credit. Recognizing that many teachers
spend their own money on materials for their
classrooms, the Act creates a refundable
credit equal to the cost of instructional
supplies purchased by a public, charter, or
private school educator, up to a maximum of
$200, with an aggregate cap of $10 million.

Extend Mayoral Control of New York City

Schools. The existing governance structure for
New York City schools is extended for an
additional three years, until June 30, 2019.

374

Supporting Non-Public School Programs.

Approximately
400,000
elementary
and
secondary students attend more than 1,600 nonpublic schools in New York State. The Executive
Budget increases aid by approximately four
percent to $174 million to reimburse non-public
schools costs for State-mandated activities. The
Budget also provides $125 million in
extraordinary aid, first authorized in June 2015,
to reimburse non-public schools for the costs of
performing State-mandated services in prior
years.

375

376

6. E

NVIRONMENT AND

ENERGY
The FY 2017 Executive Budget increases funding for

the Environmental Protection Fund (EPF), maintains

State funding for core environmental, parks and

agricultural programs, expands outdoor recreational

opportunities, and provides a new round of capital

funding for environmental facilities and wastewater
infrastructure. State agency and public authority

funding will continue to make New York a leader in the

clean tech economy, reduce emissions that contribute to

climate change, and allow the transformation of our

electric power transmission system to a distributed

smart grid network.

Overview
The States environmental, energy and natural

resource agencies support and regulate land use

planning and preservation, recreation and tourism,

agricultural

development,

protection

resources, food safety, and energy programs.

377

of

water

The Department of Environmental Conservations

(DEC) mission is to conserve, improve and protect New

Yorks natural resources and environment and to

prevent, abate and control water, land and air pollution

in order to enhance the health, safety and welfare of the

people of the State and their overall economic and

social well-being. DEC is responsible for administration

and

enforcement

Conservation Law.

of

the

States

Environmental

The Office of Parks, Recreation and Historic

Preservation (OPRHP) provides enjoyable and safe

recreational and interpretive opportunities for New

York State residents and visitors and functions as a

steward of our valuable natural, historic and cultural

resources. OPRHP operates the State park system that is

comprised of 180 State parks and 35 historic sites. In

2014, the system welcomed a record 62 million visitors

to these sites.

Together, DEC and OPRHP oversee 5.1 million acres

of open space statewide, including 2.6 million acres in

the Adirondack Park and nearly 300,000 acres in the

Catskill Forest Preserve.

The Department of Agriculture and Markets

(Ag&Mkts)

is

charged

378

with

wide-ranging

responsibilities
agricultural

including

economic

food

safety

development,

inspection,
farmland

protection, animal and plant health surveillance, and

the control of agricultural runoff (nonpoint source
pollution) that can lead to the contamination of water.

The Department of Public Service (DPS), the staff

arm of the Public Service Commission (PSC), regulates

the rates and services of public utilities an industry

with an estimated $35 billion in annual revenue. DPS

oversees the siting of major utility infrastructure, and

provides oversight on cable franchise agreements and

telecommunications

service.

Additionally,

in

conjunction with the New York State Energy Research

and Development Authority (NYSERDA), DPS oversees
the States energy efficiency and renewable energy
programs.

The New York Power Authority (NYPA) supplies

power statewide through two large hydroelectric

facilities and more than 1,400 miles of transmission
lines.

379

Protecting the Environment

In Governor Cuomos first term, more than $16

billion was committed to environmental and energy

programs for infrastructure, resiliency, and clean

energy. This investment directly benefits the States

economy and was the boldest commitment to the

environment by any first term New York Governor in a

generation. In 2015, the Governor continued this

commitment by establishing a $200 million clean water

infrastructure grant program, extending the State

Superfund program, which funds the cleanup of

hazardous waste sites, by $1 billion, and unveiling the

NY Parks 2020 initiative, to invest $900 million in State

parks by 2020.
The

Governors

commitment

to

open

space

protection and improved access to wildlife-related

recreation was reflected in the acquisition of the former

Finch Pruyn Lands, the largest addition to the

Adirondack Forest Preserve in a century. In addition,

the enactment of the NY Open for Fishing and Hunting

initiative streamlined and reduced hunting and fishing

license fees and provided for dozens of new and

improved ways to access the States natural resources.
380

The FY 2017 Executive Budget increases support for

critical environmental protection and energy programs.

Funding for the Environmental Protection Fund (EPF),

which provides dedicated funding to communities

throughout New York to improve the environment, will

be increased by $123 million, to $300 million. This

represents the highest level of funding since the

creation of the EPF, and exceeds the previous high by

$45 million. Since taking office, Governor Cuomo has

more than doubled funding for the EPF, increasing

annual funding by a total of $166 million. Reflecting the

Governors commitment to combat climate change and

reduce greenhouse gas emissions, the EPF for the first

time will include a new climate change mitigation and

adaptation account to provide funding for adaptive
infrastructure,

greenhouse

resiliency planning programs.

gas

management,

and

The Budget also includes $135 million of new capital

appropriations for DEC, OPRHP, Ag&Mkts, and the

Olympic Regional Development Authority (ORDA). This

infusion of capital funds will accelerate capital

infrastructure projects statewide, spur the creation of

jobs,

and

leverage

private

sector

and

Federal

investment. Further, the Budget provides $100 million

381

of new funding for clean water infrastructure grants to

support drinking water and waste water capital

improvements across the State.

Summary of Spending (All Funds)

Change
Category
Total Environment
and Energy Spending
Department of
Agriculture and
Markets
Department of
Environmental
Conservation

Office of Parks,
Recreation and
Historic Preservation

FY 2016
FY 2017
Dollars
(millions) ( millions) (millions)
1,534
105

(15)

(12.5)

922

998

76

8.2

323

326

0.9

120

67

Percent

1,467

4.6

The Budget increases capital funding for the

environment, and maintains funding at current levels

for agricultural, environmental and parks operating

programs.

Department of Agriculture and Markets.

Primarily due to a transfer of agricultural
marketing responsibilities ($12.4 million) to
Empire State Development, along with the
discontinuation of one-time local assistance
program funds and the completion of one-time
capital spending, total funding for Ag&Mkts is
decreased by $15 million.
382

Department of Environmental Conservation.

Total spending for DEC is increased by $76
million, reflecting increases in the EPF and other
capital program spending.

Office of Parks, Recreation and Historic

Preservation. Total funding for OPRHP is
increased by $3 million, reflecting growth in
capital spending.

Proposed FY 2017 Budget Actions

Environmental Protection Fund. The Budget

includes appropriations of $300 million for the
EPF, the highest level of funding in the programs
history and an increase of $123 million from FY
2016. Appropriations include $33.8 million for
solid waste programs, $76.8 million for parks
and recreation, $156.9 million for open space
programs, and $32.5 million for a new climate
change mitigation and adaptation program. The
increase will provide record funding for critical
environmental programs such as land
acquisition, farmland protection, invasive
species prevention and eradication, water
quality improvement, and an aggressive
environmental justice agenda. Further, this
funding level will allow for the creation of new
programs to reduce greenhouse gas emissions
and adapt to climate change. Funding to support
the increase in FY 2017 will come from monetary
settlement funds. No funding from Regional
Greenhouse Gas Initiative (RGGI) proceeds will
be used to support the EPF.
383

Clean Water Infrastructure. Recognizing the

growing infrastructure needs across the State,
the Budget includes an additional $100 million
two-year commitment for municipal drinking
water and waste water infrastructure grants, for
a total $250 million commitment including
reappropriations. These funds will be used in
conjunction with the Environmental Facilities
Corporations (EFC) revolving loan program.
Infrastructure Investment. The Budget
provides $135 million of new capital
appropriations that will address a backlog of
environmental capital needs and spur job
creation
and
economic
development.
Specifically:

o $90 million is allocated to OPRHP to support

health and safety projects and critical
infrastructure rehabilitation.
o $40 million is allocated to DEC to address a
variety of capital needs including public
access projects to connect hunters, anglers,
bird watchers and other outdoor enthusiasts
to un-tapped State owned lands. This funding
will also provide for investments in
information technology, and in health and
safety repairs to State infrastructure,
including dams, wetland restoration, State
lands and fish hatcheries.
o $2.5 million is allocated to the Department of
Agriculture and Markets to improve and
rehabilitate the State fairgrounds.
o $2.5 million is allocated for ORDA
infrastructure, supplementing $7.5 million of
384

capital appropriations in the Authoritys

budget.

Expand Access to New York Grown

Agricultural Products. Building on last years
success, the Budget includes $1.1 million for the
Taste NY program. This program is branding
and expanding New Yorks food and beverage
industry by making the wide variety of foods and
beverages grown and produced in the State
readily available and recognizable to New
Yorkers and the public across the globe. In 2015,
Taste NY achieved the Governors goal of tripling
gross sales of participating vendors, with sales of
New York products jumping to $4.5 million.
Taste NY products are now available in over 30
retail locations statewide, and in 2015 over 1.3
million people attended 43 Taste NY events. The
Budget also includes $350,000 for the
FreshConnect farmers market program, which
benefits farmers and consumers alike, by
awarding competitive grants to create and
expand farmers markets in underserved
communities. To increase the availability of
locally grown hops for the States growing craft
brew industry, the Budget continues $40,000 for
a program to evaluate and test hop varieties in
New York.
Maintain Core Agriculture and Markets Local
Assistance Funding. Funding for core
agricultural programs that protect health and
safety, provide education, and support the
promotion of New York State products will
continue. These programs include the Migrant
Childcare
program,
Cornell
Veterinary
385

Diagnostic Laboratory, Cornell Pro-Dairy, the

Wine and Grape Foundation, and Farm Family
Assistance.

Agricultural Marketing Orders. The Budget

includes
legislation
that
will
transfer
administration of agricultural marketing
programs (known as marketing orders) from
Ag&Mkts to Empire State Development (ESD).
This transfer will enable the States agricultural
associations involved with the marketing
programs to utilize ESDs marketing expertise to
better increase awareness and promotion of the
States agricultural products.

NYS Certified High Quality Initiative. Utilizing

Ag&Mkts, ESD, EPF, and other capital resources,
the Budget will support implementation of the
NYS Certified High Quality initiative. This
program will fund marketing, branding, food
safety,
environmental
management,
and
economic development initiatives to create the
safest food system in the nation. A unique label
will be created that identifies food from a New
York producer who uses best practices in food
safety, food handling, and environmental
stewardship.
Transfer the Canal Corporation to NYPA. The
Budget includes legislation that transfers the
New York State Canal Corporation from the New
York State Thruway Authority to the New York
Power Authority (NYPA). This transfer will
enable the canal system to benefit from NYPAs
experience in managing our States water assets
while ensuring the continued efficient operation
of the canal system. NYPA operates seven hydro386

electric plants throughout the State, including

three located within the canal system. NYPA and
the Canal Corporation already share services on
the canal system, and this transfer will only
strengthen this partnership.

Clean
Energy
Workforce
Opportunity
Program. In order to educate the next
generation of clean energy workers, this new
$15 million fund will expand clean technology
and renewable energy programs offered by
SUNY. In partnership with clean energy
businesses located on or near SUNY campuses,
the fund will allow these schools to offer
additional courses, hire new faculty, and
purchase or upgrade the advanced machinery
and lab equipment necessary to teach students
the skills to succeed in the green energy
workforce.
Department of Public Service Operations. The
Budget includes legislation that will enable the
Department of Public Service (DPS) to more
effectively utilize its resources by streamlining
the review and approval of utility service rates
changes requested by municipally owned gas
and electric utilities. The Budget also includes
legislation that will allow for more
comprehensive reviews of highly technical and
complex rate cases by extending the length of
time the Public Service Commission has to
approve utility sought rate increases, from
eleven to fifteen months.
Make the Waste Tire Fee Permanent. In order
to avoid cuts to essential programs, the Budget
permanently extends the Waste Tire Fee, which
387

is scheduled to expire December 31, 2016. This

$2.50 fee, which has been in place since 2003,
funds the abatement of waste tire sites and
supports approximately 140 Department of
Environmental
Conservation
employees
involved in mission critical solid and hazardous
waste cleanup activities.
Reduce Navigation Law Reimbursement. To
provide nearly $1 million in annual savings, the
Executive Budget includes legislation which
reduces the reimbursement provided to local
municipalities for the costs of voluntary patrols
of the States waterways from 50 percent to 25
percent.

388

7. H

EALTH CARE

The FY 2017 Executive Budget builds upon the

Medicaid Redesign Teams historic reforms that are

achieving better health care outcomes at a more

sustainable cost. The Budget supports more effective

models of care, sustains the States health benefit

exchange, encourages regional collaborations among

providers and communities, promotes the States

Prevention Agenda, and continues investments in health

care infrastructure and caregiver supports.

Overview

The Department of Healths (DOH) mission is to

ensure high quality health services are available to all

New Yorkers. Consistent with this mission, DOH
manages comprehensive health care and long-term care

coverage for low- and middle-income individuals and

families through the Medicaid, Child Health Plus (CHP),
and Elderly Pharmaceutical Insurance Coverage (EPIC)
programs.

389

In addition to its health insurance programs, DOH

protects

public health,

supervises

public health

activities throughout the State, and operates health care

facilities including Helen Hayes Hospital, four veterans

nursing homes, and the Wadsworth Laboratories. The

Department also regulates all health care facilities in the
State.

The Office of the Medicaid Inspector General,

established as an independent entity in 2006, preserves

the integrity of the Medicaid program by conducting

and coordinating fraud, waste and abuse control

activities for all State agencies responsible for Medicaidfunded services.

The State Office for the Aging (SOFA) promotes and

administers programs and services for New Yorkers 60

years of age and older. The Office oversees community-

based services provided through a network of county

Area Agencies on Aging and local providers.

Assuring Quality Health Care for All New

Yorkers
New Yorks Medicaid program is the States largest

payer of health care and long-term care. Over six million

individuals receive Medicaid-eligible services through a

390

network of more than 60,000 health care providers and

more than 16 managed care plans. Total Federal, State

and local Medicaid spending is expected to be $63
billion in FY 2017.

Prior to 2011, Medicaid spending had grown at an

unsustainable rate while failing to deliver quality

outcomes for New Yorkers, despite years of attempted

cost

containment.

In

2009,

according

to

Commonwealth State Scorecard of Health System

Performance, New York State ranked 22nd among

states in quality of health care measures and worst
among all 50 states in avoidable hospitalization.

Recognizing the need to control spending growth

and improve health care results, Governor Cuomo

commissioned the Medicaid Redesign Team (MRT), a

new and inclusive approach to developing health care
policy. Comprised of individuals representing virtually

every sector of the health care delivery system, and

with widespread public input, the MRT advanced

proposals that create models of care to significantly

improve health outcomes and tie future spending to a
rational measure of growth the 10-year rolling

average of the Medical Consumer Price Index (currently

estimated at 3.4 percent).

391

The MRTs innovative and collaborative work has

bent the cost curve for the Medicaid program and has
saved the State and Federal governments over $17

billion each, through FY 2016. In addition, these efforts

have significantly improved the health care landscape.

In the Commonwealth Funds 2015 Scorecard of Health

System Performance, New York State improved

virtually across-the-board, achieving a rank of 13

among states in overall health system performance and

climbing 24 spots to 26th among all 50 states in
avoidable hospitalization.

Building on this success, and through further

collaborations, New York is positioned to continue the

transformation of health care for all payers and
recipients.

The

Executive

Budget

advances

this

transformation through continued investments that will

help introduce integrated models to improve care
delivery and positive health outcomes at lower cost
through New Yorks Medicaid waiver.

392

Summary of Spending
(All Funds Unless Otherwise Noted)
Change
Category
Medicaid (Total All
Funds)*

Medicaid (Global Cap)

Department of Health
Spending (Excluding
Medicaid and BHP)
Essential Health Plan

Office of the Medicaid

Inspector General
Office for the Aging

FY 2016
FY 2017
Dollars
(millions) (millions) (millions) Percent
63,656

63,308

(348)

-0.5

4,052

4,183

131

3.2

17,104

17,692

588

3.4

1,660

2,461

801

48.2

224

225

0.5

53

51

(2)

-3.8

*The decline in the Medicaid All Funds number is primarily associated with shift
of Medicaid funds to the Essential plan and a year to year reduction in
supplemental Federal Medicaid payments to localities that reflects the approval
of multiple years of Federal payments in FY 2016.

Proposed FY 2017 Budget Actions

The Executive Budget reflects the continuation of

the Medicaid spending cap enacted in FY 2012 and

recommends funding consistent with its provisions. The

Budget achieves modest savings from public health and
aging programs through program reforms, enterprisewide efficiency measures, and general cost-control
efforts.

393

Health Care Transformation

The success of the MRT and other State initiatives

demonstrates that through constructive collaboration,

unsustainable spending trends can be reversed while

improving care delivery and health outcomes. The

Federal government has recognized the success of New
Yorks efforts and the saving that has been generated. In
April 2014 the Federal government awarded New York

State an $8 billion, 5 year Medicaid waiver. In the first

two years, $1.7 billion has been awarded under the

waiver. This includes $963 million to 25 Performing

Provider Systems (PPSs) statewide so that these

consortiums of regional providers can implement

approved Delivery System Reform Incentive Payments
(DSRIP) program transformation projects; $280 million

for Health Homes and other reform initiatives; and $500

million for financially distressed safety net hospitals
whose viability is critical to achieving ongoing reforms.

Over the next year these PPSs will increase their

participation in value-based payment arrangements,

continue to receive performance based payments

reflecting

their

system

transformation,

clinical

management and population health improvements and

394

progress towards the goal of reducing avoidable

hospital use by 25 percent over the next five years.
In

addition,

the

State

will

continue

its

implementation of the State Health Innovation Plan

(SHIP) under the terms of a $100 million Federal award.

Implemented over four years, this plan will provide

statewide access to high quality and coordinated care.

The intent is to build upon Medicaid reform efforts and

translate these efforts to achieve similar outcomes

across New Yorks entire health care system.

The Budget also maintains $2.5 billion in capital

investments to make infrastructure improvements and

provide additional tools to stabilize health care
providers to further advance transformation goals.

Medicaid Redesign
The Executive Budget continues the implementation

of MRT recommendations. These reforms represent the

most comprehensive Medicaid reform in State history,
with initiatives designed to improve the full spectrum of
health care delivery. A cost neutral package of new MRT

initiatives is proposed to make critical investments in

health

care

delivery

and

395

support

health

care

transformation.

This

package

includes

increased

payments to essential community providers and new

payments to enhance population health improvements.

These investments are balanced by savings resulting

from targeted Medicaid integrity initiatives to eliminate

fraud and abuse, improvements in benefits design,

greater pharmaceuticals controls, and compliance with

the Federal spousal support law.

The Budget also re-institutes the New York City

contribution toward financing the growth in Medicaid

expenses, effective October 1, 2016. The contribution

level is increased by 3.6 percent in FY 2017 and 5.8

percent in FY 2018, with annual growth of about two

percent thereafter. The Medicaid cap was introduced as

a means of helping counties remain within the two

percent property tax cap. Since 2012, all local

governments and school districts, except New York City,
have been subject to the States Property Tax Cap.
Because of this exception, the Citys property tax levy
has been growing at a significantly higher rate each year

than what is allowed under the tax cap. In 2016, the

Citys levy is approximately $3.5 billion more than if it

had been held to the property tax caps growth limits.

This makes New York City uniquely positioned to

396

assume responsibility for a portion of its Medicaid

growth.

New York Health Benefit Exchange

In 2013, in accordance with the ACA, the Governor

issued Executive Order #42 to establish a New York

Health Benefit Exchange. The Exchange NY State of
Health serves as a centralized marketplace to shop for,

compare, and enroll in a health plan. The health plans

offered through NY State of Health are, on average, 50

percent less expensive than those available in 2013

prior to the creation of the marketplace. To date, over

2.7 million New Yorkers have enrolled in coverage
through the marketplace. The Executive Budget

includes $484 million in total funding for the operation

of the NY State of Health.

Public Health and Aging Programs

DOH and SOFA administer programs that support

New Yorks public health and senior care systems. The

Executive Budget provides more than $350 million for

local government activities, makes new investments

and reduces costs by restructuring programs and
397

implementing administrative efficiencies. These actions

will save an estimated $87.4 million in FY 2017 and
$106.6 million in FY 2018. Key items include:

Access Federal Health Services Initiative

Funding. Through the Child Health Plus
program, states have the option to receive
Federal funding to support health initiatives that
benefit CHP eligible children. To receive
additional Federal funding, the Executive Budget
shifts a portion of the Medical Indemnity Fund
(MIF) and support for Poison Control Centers to
CHP. This initiative will result in $36.2 million in
annual State savings, primarily associated with
shifting eligible MIF costs and reducing annual
State support payments.
Focus Excess Medical Malpractice Funding.
The State currently provides a second layer of
medical malpractice coverage to qualified
physicians and dentists, which supplements
their primary individual coverage. This program,
however, has become over-subscribed and has
strayed from its original intent to enable
community hospitals to attract doctors in highrisk specialties. The Budget will modify the
existing program and prioritize funding to
support doctors in high-risk specialties and high
risk areas. This initiative will result in $25
million in State savings annually.
Reform Early Intervention (EI) Program. The
EI program provides a comprehensive array of
therapeutic and support services to children
under the age of three with confirmed
398

disabilities (e.g., autism, cerebral palsy) or

developmental delays. The program serves
approximately 68,000 children annually and is
jointly financed by Federal, State and local
governments. The Budget includes a series of
program improvements that will result in a net
State savings of $5.0 million in FY 2017 and
$20.3 million in FY 2018. These actions also
provide fiscal and administrative mandate relief
to counties and generate cumulative local
savings of more than $105 million over five years
without impacting service levels. They include:

o Increase Insurance Reimbursement. While

over 40 percent of EI recipients have health
insurance coverage, only two percent of total
service claims are reimbursed by health
insurers. This reform would require insurers,
including Child Health Plus (CHP) plans to
pay medically appropriate claims, abide by
existing prompt payment requirements, and
send payments to the billing provider.
o Streamline Eligibility Determinations. The
State will take advantage of options under
revised Federal regulations to achieve
program efficiencies by requiring initial
screenings for children who may not require
more
costly
comprehensive
medical
evaluations and by using medical and other
records to establish eligibility where
appropriate.
o Increase Administrative Reimbursement.
To more appropriately reimburse providers
for their costs, the Budget increases the
administrative component of provider rates
399

by 1 percent. The administrative component

of EI rates has not been modified since 1994
despite
changes
in
program
and
reimbursement requirements for providers.

Empire State Poverty Reduction Initiative.

The Budget includes $25 million of new funding
to significantly expand the anti-poverty
initiative, begun in 2015.
Planning grants
totaling $5 million will be available in ten
communities with high concentrations of
poverty. In addition, $20 million will be available
for grants to match private sector and
foundation funding. In addition, the Budget
continues the $4.5 million increase enacted in
FY2016 to the Hunger Prevention and Nutrition
Assistance Program to allow the program to
respond to the emergency food needs of hungry
New Yorkers, increasing support for the program
to $34.6 million.
Continue Support for the Spinal Cord Injury
Research Program (SCIRP). SCIRP supports
peer-reviewed research efforts designed to
develop, test and validate therapies for the
treatment of spinal cord injuries. The Budget
continues SCIRP funding at $8.5 million annually.

Continue Alzheimers Caregiver Supports. The

Budget continues the $25 million investment in
care and support services for individuals living
with Alzheimers disease and other dementias
and their caregivers.

Maintain Aging Supports. The Budget

continues the $3 million increase in both the
Community Services for the Elderly Program and
400

the Long Term Care Ombudsman Program

(LTCOP).

Better
Target
Naturally
Occurring
Retirement
Community
(NORC/NNORC)
Funding. NORC programs provide support
services to older persons in designated
community residential settings statewide, but
largely in metropolitan areas. As the housing
preferences of older persons change, some
existing NORC locations may no longer meet the
statutory requirements for funding. This
initiative would specifically target funding to
those NORC/NNORC programs that continue to
meet statutory requirements. This initiative is
estimated to save the State $951,000 annually.
Implementation of the Human Services Cost
of Living Adjustment (COLA). The Budget
includes $1.2 million to support the statutory
cost of living adjustment for not-for-profits that
provide services on behalf of DOH and SOFA.

Other Initiatives

Ending the AIDS Epidemic. New Yorks

successful strategic investments in the
prevention and care for individuals with
HIV/AIDS places the State in the position of
being able to advance a plan for the end of the
HIV/AIDS epidemic. The FY 2017 Executive
Budget reflects the initial installment of a $200
million multi-year commitment of new funding
toward HIV/AIDS efforts, which is in addition to
the $2.5 billion in public funding that the State
401

currently directs toward addressing the health

care needs of those living with the disease.
Specifically, these funds will be used to expand
the availability of affordable housing and
housing assistance for those living with HIV and
identify undiagnosed persons, link them with
treatment and facilitate access to necessary
medications to keep them HIV negative to
prevent spreading the disease.

402

8. H

IGHER EDUCATION

The FY 2017 Executive Budget strengthens the

ability of New Yorks public system of higher education

to excel academically and act as an economic engine. A

renewed NYSUNY 2020 program and new strategic
investments will yield further academic gains, create

employment opportunities, and connect graduates to

jobs. The Budget also realigns financial support for
CUNY

senior

colleges

governance structure.

commensurate

with

its

Overview

Each year, New York States higher education

institutions educate over 1.2 million students. The State

University of New York (SUNY) and the City University
of New York (CUNY) administer 47 four-year colleges

and graduate schools that provide 396,000 full- and

part-time students with an array of undergraduate,

graduate,

and

first

professional

educational

opportunities. SUNY and CUNY also support 37

community colleges, serving 333,000 students. In

403

addition, 532,000 students attend the more than 100

private colleges and universities across the State. Over

the past 10 years, total enrollment at New Yorks

institutions of higher education has increased by

127,000 (11 percent).

The State University Construction Fund (SUCF), City

University

Construction

Fund

(CUCF),

and

the

Dormitory Authority of the State of New York (DASNY)

administer and oversee a capital program for over

3,000 academic, research, hospital, dormitory, and

multi-use facilities, which make up the physical

infrastructure of the university systems.

To help students obtain and afford a college

education, the Higher Education Services Corporation

(HESC) provides students and families with various
types of financial aid services. HESC oversees numerous

State-funded aid programs, including the Tuition

Assistance Program (TAP), the Aid for Part Time Study
program, and 18 scholarship and award programs.

Together these programs provide more than $1 billion

in financial aid to over 360,000 students. HESC also

partners with the Office of the State Comptroller in

administering the College Choice Tuition Savings

program.

404

The State Education Department administers over

$100 million in funding for higher education including

opportunity programs that help support the success of
disadvantaged students and aid to private colleges.

Higher Education: Developing a Modern

Workforce
SUNY/CUNY Senior Colleges
In 2011, Governor Cuomo signed groundbreaking

legislation implementing the NYSUNY 2020 and

NYCUNY 2020 Challenge Grant Program. This five-year
program, which is scheduled to end on July 1, 2016,
strengthened New York States system of higher

education by introducing a rational and predictable

tuition plan, a commitment to maintain State financial

support, a competitive grant program making our State

universities incubators of academic excellence and

economic growth, and assistance to make college
affordable for students with limited income.

The rational tuition policy replaced an era of

unpredictable and sometimes extreme tuition increases

by allowing each SUNY and CUNY campus to raise
tuition by $300 per year for five years. The program
405

enabled families to plan for college expenses, while

making it possible for the public university systems to
add faculty, reduce class sizes, expand program
offerings, and improve academic performance.

NYSUNY 2020 and NYCUNY 2020 also maintain

higher education affordability by augmenting the States

TAP program. Using a portion of the additional tuition

revenue, students who receive TAP awards and attend

SUNY State-operated colleges or CUNY senior colleges

also receive financial aid in the form of tuition credits

ensuring students with limited economic resources
continue to have access to educational opportunities.

In addition, NYSUNY 2020 and NYCUNY 2020

launched a competition-based challenge grant program.

This program has made New Yorks public universities

incubators of academic excellence and economic growth

at the center of the States regionally based economic

revitalization strategy. These grants leverage State

capital funding to incentivize bottom-up, individualized,

long-term economic development plans on campuses

and their surrounding communities.

Governor Cuomo built upon these initiatives by

launching START-UP NY, the groundbreaking initiative

established in 2013 to transform SUNY and private
406

college and university campuses and communities

across the State into tax-free zones. This program is

attracting new businesses and encouraging existing

businesses to expand. To date, a total of 155 businesses
have been approved for START-UP NY participation and
are projected to create over 4,200 net new jobs and
nearly $221 million in investment.
In

2015,

to

promote

student

success

and

institutional excellence, the Governor began the process

of shifting State support from an enrollment-driven

formula to one that bases a portion of state aid on

performance. SUNY and CUNY received $30 million in

new investment and performance funds allocated to
campuses based on their performance improvement

plans that identify and implement best practices from

around the systems. These plans include goals to

improve outcomes in student access, completion, and

post-graduation success.

Community Colleges
Several recent initiatives have combined to help

modernize our community college system. In 2013, the

Next Generation NY Job Linkage Program was
407

established to connect students to careers by having

community colleges partner with regional employers to

provide students with improved opportunities for post-

graduation employment in a field related to their

education. This initiative provides $5 million in

incentive funding to reward community colleges based

on the success of their students in job placement and

academic performance.

To further align community college offerings with

regional needs, in 2015 SUNY created regional planning

councils to ensure that community colleges collaborate

with neighboring colleges as well as stakeholders from

state agencies, local governments and business. In

addition, a new Community College Community Schools
program

was

launched

to

provide

our

most

disadvantaged students the tools and support they need

to persevere and graduate.

Making College More Affordable

Governor Cuomo has made several strategic

investments to make college more affordable and to

encourage the best and brightest students to build their

future in New York State and help to fill critical jobs. For
408

the first time in 14 years, New York State increased the

maximum TAP award, from $5,000 to $5,165.

The Governor also created a new scholarship

program for the top 10 percent of students in each high

school. These students receive full tuition scholarships

to any SUNY or CUNY college or university if they

pursue a Science, Technology, Engineering and Math

(STEM) career and work in New York for five years.

The FY 2016 Budget included the new Get on Your

Feet Loan Forgiveness Program to provide Federal

student loan relief to New York residents who graduate

from college and continue to live in the state for the first
two years out of school if their income is not high

enough to cover their student debt burden without

significant financial hardship. Recognizing that the

rising cost of college and sub-optimal student outcomes

make college choice more critical than ever, New York

created a standard financial aid award letter for colleges

and universities to provide students and their families

with information on the total costs of education and the

success of other students after graduation.

Finally, both SUNY and CUNY have played key roles

in implementing the New NY Education Reform

Commissions recommended action plan to improve the

409

quality of New Yorks education system. In particular,

the university systems have taken action to raise

admission requirements and strengthen the curriculum
for teacher preparation programs.

Summary of Spending (General Fund)

Category

Academic
FY 2016
(millions)

Change
Academic
FY 2017
Dollars
(millions) (millions) Percent

SUNY State-Operated
Campuses*

2,646

2,676

30

1.1

HESC Financial Aid

Programs

1,187
1,066

1,188

0.1

CUNY Senior Colleges*

SUNY and CUNY Debt
Service
Community Colleges
SED Programs

SUNY Hospitals
Subsidy**
Subtotal

NYC Share of CUNY

Senior Colleges

CUNY Retroactive Salary

Increases
General Fund Total

1,217

735
106

88

1,232

15

1.134

68

106

729

(6)

1.2
6.4

(0.8)
0

7,045

69

7,134

(19)

(485)

(485)

--

7,045

6,889

(156)

(2.2)

240

89

240

*Includes funding for campus operations and employee fringe benefits.

**Returns to the FY 2016 Executive Budget funding level.

410

(21.2)
1.3

--

Strategic Investments in Higher Education

The Executive Budget renews the NYSUNY 2020 and

NYCUNY 2020 program for another five-year period

and makes strategic investments including $30 million
to

implement

SUNY

and

CUNY

performance

improvement plans, creation of a $15 million Clean

Energy Workforce Opportunity Program to develop a

new clean-tech workforce development program on
SUNY campuses, and $110 million for another round of

NYSUNY 2020 and NYCUNY 2020 capital challenge

grants.

In a continued effort to modernize our community

college system, the Executive Budget establishes a new

Apprentice SUNY: NY State Advanced Manufacturing

Apprenticeship Program for community colleges to

develop one of the largest statewide public/private

partnership apprenticeship programs in the country.

The Budget also expands the Community College

Community Schools program to provide more support

services to ensure student success, and supports the
advancement of undocumented immigrants by enabling
them to apply for State college tuition assistance under
a DREAM Act initiative.

411

Finally, the Executive Budget will rationalize funding

for CUNY senior colleges by having the City of New York

pay a share of financial support that aligns with the

Citys participation in the governance of CUNY.

Major Initiatives

Renew NYSUNY 2020 and NYCUNY 2020. To

maintain an affordable and stable system of
funding New Yorks public university systems,
the Budget extends the NYSUNY 2020 and
NYCUNY 2020 program for an additional five
years. A new rational tuition plan will allow
SUNY and CUNY to increase the New York
resident tuition rate up to $300 per year,
provided they demonstrate considerable efforts
to reduce spending and justify tuition increases
based on inflationary indices. Additional revenue
generated by a tuition increase would be used to
support investments in faculty, instruction and
tuition credits for TAP-eligible students. The
renewed NYSUNY 2020 plan also continues the
Governors commitment to provide a consistent
level of support for SUNY and CUNY. In addition,
the Budget includes $110 million for a new
round of NYSUNY 2020 and NYCUNY 2020
capital challenge grants, $55 million for each
university system. Funding will continue to be
awarded through a bottom-up competitive
process by which campuses develop plans for
improving
academic
outcomes,
finding
efficiencies, and promoting innovation and
economic development.
412

Expand SUNY and CUNY Performance

Initiatives. The Budget continues the process of
shifting state support from an enrollment-driven
formula to one that bases a portion of State aid
on performance. SUNY and CUNY will receive a
new investment of $30 million to implement
campus performance improvement plans that
identify and implement best practices from
around the systems to improve outcomes in
student access, completion, and post-graduation
success. The Executive Budget also includes $5
million for the Next Generation NY Job Linkage
Incentive Fund.
Establish a Clean Energy Workforce
Opportunity Program. The Budget builds
SUNYs capacity to educate the next generation
of green energy workers. The $15 million Clean
Energy Workforce Opportunity Program will
enable SUNY to work with clean energy
companies to develop a new jobs training and
certification program that will make New York a
leader in clean tech workforce development. The
funding will be used to hire new faculty and
purchase cutting-edge equipment that will be
used in these new academic programs.

Create Apprentice SUNY: NY State Advanced

Manufacturing Apprenticeship Program. To
meet the growing need for a skilled workforce,
the Budget provides funding for New Yorks
community colleges to develop one of the largest
statewide
public/private
partnership
apprenticeship programs in the country,
generating thousands of new employment
opportunities for community college graduates.
413

In partnership with NYSDOL, this new $5 million

program will leverage the resources and capacity
of the community colleges by building on the
infrastructure developed with the $15 million
USDOL Trade Adjustment Assistance Community
College and Career Training grant awarded in
2013. Apprentice SUNY will help 2,000 students
receive classroom and practical training through
new registered apprenticeships linked to
degrees that provide new participants with paid
on-the-job skills training, a degree or certificate,
a
portable,
national industry-recognized
credential and a full-time job upon graduation.

Expand Community College Community

Schools. To help more students and their
families have the support they need to reach
their educational goals, the Budget includes $1.5
million to provide three additional Community
College Community Schools grants. This
program, which begun in 2015, helps community
colleges to address student needs such as child
and elder care, transportation, health care
services, family counseling, and employment
assistance.
Make the Dream of Higher Education
Available to All. The Executive Budget supports
the advancement of undocumented immigrants
by enabling them to apply for State college
tuition assistance under a DREAM Act. This
initiative continues the States tradition of
welcoming immigrants and honoring their
contribution to our culture and economy.

Realign Funding and Governance for CUNY

Senior Colleges. The Budget adjusts financial
414

responsibility for CUNY senior colleges to better

align with CUNY governance. New York Citys
share of public support for CUNY senior colleges
is only two percent, yet the City controls 30
percent of appointments to the CUNY Board of
Trustees. This governance and funding structure
dates back to a time when New York City was
experiencing a fiscal crisis and was unable to
support CUNY senior colleges. As New York City
is no longer in a fiscal crisis it ended 2015 with
a multi-billion dollar surplus and billions in
reserves the Budget resumes the practice of
sharing CUNY senior college expenses with the
City. Commensurate with the percentage of
CUNY appointments, the Budget requires that
the City of New York assume a 30 percent share
of CUNY senior college net operating and debt
service expenses, totaling $485 million in the
2016-17 City fiscal year.

Enactment of this cost sharing arrangement

will enable the State to provide $240 million
from the General Fund to CUNY to support
retroactive salary increases needed to ensure
fair and affordable agreements with CUNYs
labor unions.

415

416

9. H

UMAN SERVICES

The FY 2017 Executive Budget increases the

minimum wage, makes an unprecedented $20 billion

investment in affordable housing, homeless housing and

homeless services, provides funding for core supportive

services for needy populations, and provides funding
for child care subsidies that allow low-income

individuals to seek or maintain employment.

Overview
New Yorks human services programs promote the

safety and well-being of the States most vulnerable

residents.

The Office of Temporary and Disability Assistance

(OTDA) and the Office of Children and Family Services

(OCFS) oversee programs that support and provide

assistance for financial assistance to elderly and

disabled persons who are unable to work, supportive

services to public assistance recipients to prepare for

and secure employment, child support enforcement,
child care subsidies to assist low-income working
417

families, juvenile justice, and child and adult protective

services.

Programs funded through the Department of Labor

(DOL) protect
development.

workers

DOL

also

and promote
operates

Unemployment Insurance System.

workforce

the

States

Programs funded through Homes and Community

Renewal (HCR) preserve and create affordable housing.

Programs funded through the Division of Human

Rights (DHR) protect civil rights in the areas of

employment,

housing,

public

education and credit.

accommodations,

Programs funded through the Office of National and

Community Service (NCS) support community service

grants that provide youth education, assistance to

individuals with disabilities, public health services, and

disaster preparedness.

Programs funded through the Division of Veterans

Affairs (DVA) connect veterans, members of the armed

forces, and their families to various economic, medical,
and social benefits and services available as the result of
active duty military service.

418

Providing Opportunity for All New Yorkers

Since the enactment of the Federal Welfare Reform

Act of 1996, the States public assistance caseload has

declined by approximately one million recipients. The

FY 2017 caseload is estimated at 557,000 recipients.

New Yorks Supplemental Security Income (SSI)

program supplements Federal SSI benefits to low-

income elderly, blind, and disabled persons. The FY

2017 caseload is estimated at 712,000 recipients.

New York States child welfare programs are

monitored by OCFS and administered by 58 local social

services districts (LSSDs). The LSSDs are responsible for

conducting direct investigations of alleged child abuse,

as well as providing services to prevent foster care

placements for at-risk youth by keeping them with their

families, and for foster care services when out-of-home

placement is necessary.

The Child Welfare Services program supports

approximately

156,000

child

protective

services

investigations with more than 45,000 cases receiving

protective and preventive services. Federal funds

support approximately $486 million of statewide

program costs. The State supports 62 percent of non419

federal costs, and LSSDs finance the remaining 38

percent. This funding approach, authorized in FY 2003

through Child Welfare Financing Reform, provides an

incentive to use preventive services to keep families

safely intact and to avoid unnecessary foster care

placements. The front-end investment is paying

dividends, as the foster care caseload has dropped by 47

percent, from 34,900 to approximately 18,500 in FY

2016.

The Executive Budget proposals provide for core

supportive services for needy families, while limiting

spending growth and implementing measures to
improve program performance.
In

Juvenile

Justice,

the

State

continues

implementation of the Close to Home initiative. Under

this initiative, in FY 2013, New York City youth

requiring a non-secure placement were transferred

from OCFS to New York City custody to receive services
closer to their home community. New York City also

worked with OCFS on a plan to take custody of its youth

that require a limited secure placement. The limited

secure phase of Close to Home began in November 2015
and will be fully implemented in FY 2017.
420

Summary of Spending (All Funds)

Category

Change
FY 2016
(millions)

FYY 2017
(millions)

Dollars
(millions)

Percent

Human Services

8,899

8,837

(62)

(0.7)

OCFS

3,162

3,016

(146)*

(4.6)

210

286

76

36.2

OTDA
DOL

4,989

5,024

492

HCR

DVA

467

17

NCS

15

DHR

(25)

0.7

(5.1)

15

(2)

(11.8)

14

15

14

35

*$100 million of this change reflects a decrease in General Fund support for
child care subsidies that results from an equal increase in Temporary
Assistance for Needy Families (TANF) fund support for child care subsidies in
OTDA.

Proposed FY 2017 Budget Actions

Labor

Increase the Minimum Wage. Governor Cuomo

has consistently fought to increase the minimum
wage in New York State. The FY 2014 Budget
increased the minimum wage from $7.25 to
$8.00 effective December 31, 2013; to $8.75
effective December 31, 2014; and to $9.00 on
December 31, 2015. The Executive Budget builds
upon these previous increases and includes
provisions to further increase the minimum
wage to $10.50 in New York City and $9.75 in the
remainder of the State, effective July 1, 2016,
gradually increasing the minimum wage to
421

$15.00 in New York City on December 31, 2018

and across the rest of the State on July 1, 2021.
This would bring the minimum wage more in
line with the cost of living and the wage required
to lift a family out of poverty. The Budget reflects
that the phased-in increase towards a $15
minimum wage has already been put in place for
the State workforce and SUNY employees.

The current minimum wage represents less

than one-third of the average hourly wage in the
State, which is almost $29. Eight states and the
District of Columbia currently have a higher
minimum wage than New York. A reasonable
minimum wage increases the standard of living
for workers, reduces poverty, and results in
fairer business practices. Since low-income
individuals spend a larger percentage of their
income on basic needs than higher-income
earners, salary increases in low-wage
occupations lead to increased demand for goods
and services and help spur economic growth.

Paid Family Leave. Bonding with a new child or

caring for a seriously ill family member should
not cost employees their entire savings or
job. The Budget includes legislation creating a
paid family leave program. Under this program,
employees will be eligible for twelve weeks of
paid family leave when caring for an infant or ill
family member. The maximum paid benefit will
grow to 50 percent of the State's Average Weekly
Wage by 2021. This program will be funded
entirely through a nominal payroll deduction on
employees.
422

Workers' Compensation Reforms. New York's

Workers Compensation program delivers
medical and lost wage benefits to thousands of
injured workers. As currently structured, this $7
billion program is complicated and cumbersome,
delaying claim settlements and payments, and
increasing costs to employers. The Budget
includes legislation to reform the program to
benefit both workers and employers. Major
reforms will:
o Redesign current operations to ensure the
system will provide more timely and
appropriate medical and wage replacement
benefits to workers;
o Create a new pooling agreement freeing
employers committed reserves;
o Provide broader and more accessible options
for medical care by expanding the list of
eligible providers;
o Make hearings more accessible through
flexible scheduling and use of virtual
hearings; and
o Continue support for the World Trade Center
Volunteer Fund.

Housing

100,000 Unit Affordable and Homeless

Housing and Services Initiative. The Executive
Budget establishes a $20 billion, comprehensive
five year investment in affordable housing and
housing opportunities and services for the
homeless. The program will invest $9.7 billion to
establish 94,000 units of affordable housing, $2.6
billion for 6,000 units of supportive housing and
423

will also establish 1,000 new emergency shelter

beds. Over 15 years, the plan will result in
20,000 units or shelter beds, including 18,000
new supportive housing units.

Human Services

Raise the Age of Juvenile Jurisdiction. New

York is one of only two states in which the age of
juvenile jurisdiction ends on a youths 16th
birthday. This means that all 16 and 17 year olds
are processed in the adult criminal court system,
and not through the Family Courts, regardless of
the nature of their offense.

On December 22, 2015, as part of the

continued efforts to protect youth involved in
the criminal justice system, the Governor issued
Executive Order #150 directing the Department
of Corrections and Community Supervision
(DOCCS), in collaboration with OCFS, to
implement a plan to gradually remove minors
from adult prisons in the State.
Beginning in August 2016, 16 and 17 year
olds will be housed at Hudson Correctional
Facility, currently a DOCCS operated facility that
is undergoing transformation to appropriately
house and serve younger offenders. Youth will
receive specialized programming geared toward
younger offenders and individuals presenting
with mental health needs will have access to
services provided by staff from the Office of
Mental Health.
424

The FY 2017 Executive Budget reflects the

next steps to juvenile justice reforms by
advancing legislation to raise the age of juvenile
jurisdiction to age 17 on January 1, 2018 and to
age 18 on January 1, 2019. Additional reform
measures include comprehensive diversion,
probation, and programming services for 16 and
17 year old youth who will be involved in the
juvenile justice system.
Empire State Poverty Reduction Initiative.
The Budget includes $25 million of new funding
to significantly expand the anti-poverty
initiative, begun in 2015. Planning grants
totaling $5 million will be available in ten
communities with high concentrations of
poverty. In addition, $20 million will be available
for grants to match private sector and
foundation funding.

Increase Support of Child Care Provider

Inspection Activities. The Budget includes a
$10 million State Operations appropriation to
support child care provider inspection activities
necessary to comply with the Federal Child Care
and Development Block Grant Act of 2014.
Implementation of the Human Services Cost
of Living Adjustments (COLA). The Budget
includes $1.4 million to support the 0.2 percent
statutorily required Cost of Living Adjustment at
OCFS not-for-profits, for foster and adoptive
parents, and the Nutrition Outreach and
Education Program (NOEP) administered by
OTDA.
425

Invest Annual Adoption Savings in PostAdoption and Preventive Services. In

accordance with Federal law, the Budget will
invest adoption assistance savings of $5 million
into post adoption and preventive services for
children at risk of entering foster care. The $5
million savings results from a greater Federal
share of adoption assistance costs as income is
no longer a factor in determining eligibility for
Federal adoption assistance.

426

10. L

OCAL GOVERNMENT

The FY 2017 Executive Budget continues Governor

Cuomos commitment to reducing property taxes,

improving local government efficiency, and assisting

distressed local governments, while maintaining core
local government assistance.

Overview
New Yorks local government assistance programs

provide general purpose aid to municipalities, as well as

targeted grant programs and incentives for local

government efficiency and consolidation actions. The

Aid and Incentives to Municipalities (AIM) program

provides unrestricted, general purpose aid to cities,

towns, and villages.

Grant and incentive programs that provide funding

related to municipal shared services, efficiencies, and

consolidations include: the Citizens Reorganization

Empowerment Grants, Citizen Empowerment Tax

Credits, Local Government Efficiency Grants, and the
Local Government Performance and Efficiency Program.
427

Other programs provide aid to specific local

governments, including Aid to Municipalities with Video

Lottery

Gaming

Miscellaneous

Facilities

Financial

Government Assistance.

(VLT

Assistance,

Impact
and

Aid),

Small

The Financial Restructuring Board for Local

Governments assists distressed municipalities by

conducting

Comprehensive

Reviews

to

develop

recommendations for restructuring and improving

fiscal stability. The Board may offer grants or loans to

help implement its recommendations.

Addressing the Property Tax Burden

New York residents face some of the highest

property tax burdens in the nation. Since taking office

Governor Cuomo has focused on fighting this burden by

capping property taxes, improving local government

efficiency, restructuring distressed local governments,

and relieving mandates.

In his first year in office, Governor Cuomo advanced

and secured approval of one of the strongest property

tax caps in the country. In the first three years under the

tax cap, property taxes grew an average of just 2.2

428

percent per year less than half the average annual

growth from 2000 to 2010. It is estimated that if these
growth trends continue, the typical taxpayer will have
saved more than $2,100 in local property taxes by 2017.

To provide further relief, the Governor proposed the

Property Tax Freeze. Enacted in 2014, the Property Tax

Freeze provides New York homeowners an average of

$525 in direct relief over three years, bringing the
combined average savings from the property tax cap

and the Property Tax Freeze to $2,625. The Freeze

program

also

encourages

local

shared

services,

cooperation agreements, mergers, and efficiencies. In

the first year (2014 for school taxes and 2015 for local

government taxes), homeowners with incomes at or

less than $500,000 who reside in a school district or

local government that stayed within the tax cap

received a State tax credit equal to the increase in their

property taxes. In order for their homeowners to get the

tax credit in the second year, school districts and local

governments must have continued to stay within the tax

cap and have submitted an approved Government

Efficiency Plan that demonstrates savings through
shared services, cooperation agreements, mergers, or
efficiencies.

429

As a result of the Property Tax Cap and the Property

Tax Freeze program, local taxpayers will have saved

more than $17 billion through 2016. To ensure that this

savings continues, at the end of the 2015 Legislative
session, the Governor and Legislature extended the
property tax cap through 2020.

In June, 2015, an additional program was enacted to

provide direct relief to struggling New York taxpayers

the Property Tax Credit. The program is progressively

structured so that taxpayers with lower incomes

receive a higher benefit.

Credits will be remitted in the fall of each year, close

to when the majority of New York homeowners have to

pay their largest property tax bill their local school
district property taxes. All STAR-eligible homeowners

with incomes below $275,000 who live in school

districts that comply with the property tax cap will be

eligible to receive the credit. In the first year, 2016, the

program will be coupled with the third and final

installment of the Property Tax Freeze credit. Upstate

homeowners will receive $185 from the program, while
taxpayers in Dutchess, Nassau, Orange, Putnam,
Rockland, Suffolk and Westchester counties will receive

$130 from the new program. Beginning in 2017, the

430

program will provide property tax relief based on a

percentage of a homeowners STAR benefit, with lower
incomes receiving a larger percentage. When the

program is fully phased-in for benefits provided in

2019, it will provide $1.3 billion of property tax relief

and an average credit of $530.

Improving Local Government Efficiency

One of the drivers behind New Yorks high local

government cost and property tax burden is its

duplicative and overlapping local government structure.
To address this problem, the State provides a variety of
grant and incentive programs for local governments.

As part of the FY 2016 Budget, Governor Cuomo

advanced and secured approval of the Municipal

Restructuring Fund, a program that provides funding to

help local governments implement transformational

projects that contribute to lower operating costs and

reduced property tax burdens on a permanent basis.
Representatives from the Department of State met with
local leaders at regional roundtables and held a Local

Government Innovation Conference in Albany in order

to best structure the program to ensure that it meets
431

the needs of local governments. Applications for grants

will be accepted beginning in early 2016.

In addition to the Municipal Restructuring Fund

grants, the Budget continues funding for other

programs that improve local government efficiency.

This support will empower local governments and

school districts to implement actions that reduce the
property tax burden on their taxpayers.

Citizens
Reorganization
Empowerment
Grants. These grants provide funding of up to
$100,000 for local governments to cover costs
associated with planning and implementing local
government reorganization activities, such as
consolidations and dissolutions. Expedited
assistance is given to local governments that
have received a citizen petition for consolidation
or dissolution. This program shares a $35 million
appropriation with the Citizen Empowerment
Tax Credits.

Citizen Empowerment Tax Credits. For cities,

towns, or villages that consolidate or dissolve,
these tax credits provide an annual aid bonus
equal to 15 percent of the newly combined local
governments tax levy. At least 70 percent of
such amount must be used for direct relief to
property taxpayers. This program shares a $35
million appropriation with the Citizens
Reorganization Empowerment Grants.

432

Local Government Efficiency Grants. These

competitive grants provide funding to help cover
costs associated with local government efficiency
projects, such as planning for and/or
implementing a functional consolidation, shared
or cooperative services, and regionalized
delivery
of
services.
The
maximum
implementation grant award is $200,000 per
municipality/$1 million per grant consortium,
and the maximum planning grant award is
$12,500 per municipality/$100,000 per grant
consortium. A $4 million appropriation supports
this program.
Financial Restructuring Board Awards. Grants
and/or loans of up to $5 million per municipality
may be awarded by the Financial Restructuring
Board for Local Governments. There is $80
million in Local Government Performance and
Efficiency Program reappropriations available
for these awards.

Restructuring Distressed Local Governments

The Financial Restructuring Board for Local

Governments was created in 2013 to help distressed

local governments restructure and regain solvency
before the strict enforcement of a control board is
needed. The ten-member board is chaired by the Budget

Director and includes the State Comptroller, the

Attorney General, the Secretary of State, and six other

433

members appointed by the Governor. Of these six

appointees, one is recommended by the Temporary

President of the Senate, and one is recommended by the

Speaker of the Assembly.

Any eligible county, city, town, or village may

request a Comprehensive Review from the Board. The

Review will assess the local governments operations,

finances, and management structure. Based on this

information, the Board may make recommendations on

restructuring municipal operations to improve the local

governments finances and efficiency. In addition, the

Board can offer grants and/or loans of up to $5 million

per municipality through the Local Government

Performance and Efficiency Program to implement the

recommendations. To receive the aid, the local

government must agree to fulfill the terms of the
recommendations.

The Board has undertaken Comprehensive Reviews

for twelve local governments: the cities of Rochester,

Albany, Utica, Jamestown, Elmira, Lockport, and Fulton,

the villages of Alfred, Owego, Hoosick Falls, and Wilson,

and the Town of Fishkill. Additional Comprehensive

Review requests are expected.
434

Relieving Local Government Mandates

Governor Cuomo made mandate relief a priority and

has eliminated dozens of burdensome requirements,

including many of the most expensive. These important

reforms are helping local governments manage their

budgets and reduce the burden placed on property

taxpayers. Reforms that have been advanced by the

Governor and enacted include:

Medicaid Relief. The State has eliminated

growth in the local share of Medicaid, saving
counties $800 million over five years (FY 20152019). For FY 2015 and beyond, the cost of
Medicaid to counties subject to the property tax
cap will not increase all growth in the Medicaid
program for these counties is being absorbed by
the State. The State is also assuming Medicaid
administrative responsibilities for counties. This
will result in greater efficiencies and help
achieve State and Federal health care reform
initiatives.

435

Pension Reform. In recent years, pensions have

been one of the fastest growing costs for local
governments and school districts. In 2012, a new
pension tier was created in the State pension
system that will save the State, local
governments, and school districts more than $80
billion over the next 30 years. In 2013, local
governments and school districts were given the
option to have a more stable pension
contribution
rate,
which
has
greater
predictability and allows for access to the
savings from the 2012 reforms.

Binding Arbitration. After decades of local

government calls for change to the binding
arbitration process with police and fire unions,
reforms were enacted in 2013 to require
arbitrators to give significant weight to a
distressed local governments ability to pay and
to consider the property tax cap when making
awards. This will help ensure that awards reflect
the high burden already faced by property
taxpayers in these communities. The Budget
extends these reforms for three years.

436

Summary of Spending
Change
Category

FY 2016
(millions)

FY2017
(millions)

Dollars
(millions)

AIM Cities Outside

NYC

647.1

647.1

Total AIM

AIM Towns and

Villages

67.6

67.6

Percent
0
0

714.7

714.7

Citizens
Empowerment Tax
Credits and Grants*

1.9

2.4

0.5

29

Local Government
Performance and
Efficiency Program*

9.3
9.9

5.5

16.7

(3.8)

(40)

29.3

29.3

2.0

0.0

Local Government
Efficiency Grants*
VLT Impact Aid

Miscellaneous
Financial Assistance

Village Per Capita Aid

Small Government
Assistance

Buffalo/Erie Efficiency
Grants**

16.2
0.2
1.6

6.8
0

0.8

(15.4)

0.2

0.0

68
0

(95)

(2.0)

(100)

(1.6)

(100)

* For FY 2017, Citizens Empowerment Tax Credit and Grants, Local Government
Efficiency Grants, and the Local Government Performance and Efficiency Program
are being funded out of the Special Infrastructure Account instead of the General
Fund.
** Spending will be reduced to zero as the programs reach completion.

437

Proposed FY 2017 Budget Actions

Downtown Revitalization Initiative. The

Budget provides $100 million for a new initiative
to fund transformative housing, economic
development, transportation, and community
projects designed to attract and retain residents,
visitors, and businesses to downtowns. Ten
communities that are currently experiencing
population loss and/or economic decline will be
able to submit revitalization plans for their
downtown area, developed in collaboration with
policy and planning experts.

Municipal Consolidation Competition. To

further
encourage
local
government
consolidation, the Budget creates a new $20
million consolidation competition designed to
empower counties and other local governments
to pursue opportunities for consolidation, shared
services, and other changes that permanently
reduce the property tax burden. This
competition is designed to bring forth
aspirational consolidation ideas that will change
the structure of local government.

Continue Restructuring Programs. The Budget

continues funding to support the Municipal
Restructuring Fund, the Local Government
Performance and Efficiency Program, Citizen
Empowerment
Tax
Credits,
Citizens
Reorganization Empowerment Grants, and Local
Government Efficiency Grants. These programs
will be funded through the Special Infrastructure
Account, as authorized in the FY 2016 Budget.
438

Maintain Local Government Aid. The Budget

maintains most local government aid programs
at FY 2016 levels, including: $715 million in
unrestricted AIM funding to cities, towns, and
villages; $29.3 million in VLT Impact Aid; and
$217,300 in Small Government Assistance.
Legislative adds, such as Miscellaneous Financial
Assistance and Village Per Capita Aid, are
discontinued.

Overall Fiscal Impact on Local Governments

The Executive Budget results in a year-to-year net

positive local impact of $1.3 billion for municipalities

and school districts for their fiscal years ending in 2017.

This net local benefit is primarily the result of a

statewide school aid increase of $991 million, including

competitive school grants, and the continuation of the

States Medicaid growth takeover with adjustments to

the program. The benefit is primarily offset by an
impact to New York City related to rationalizing funding

and governance for CUNY senior colleges while

providing CUNY contract funding.

439

Impact of the FY 2017 Executive Budget on Local Governments

(Local Fiscal Year Ending in 2017)
($ in millions)

Total
School Aid

Other Education

Revenue Actions
Medicaid
Health

Mental Hygiene
Municipal Aid
Environment
Other

963.0

(95.1)

(13.0)
349.5
20.9

(1.5)
(1.6)
(0.9)

NYC

School
Districts
(non-NYC) Counties

All
Other

364.0

599.0

0.0

0.0

145.9

0.0

203.6

0.0

(185.1)
(13.0)
12.5

(2.0)
0.0

(0.1)

90.0
0.0
0.0
0.0
0.0
0.0

0.0

0.0
8.4
0.5

0.0

0.0
0.0
0.0

0.0

(1.6)

(0.8)

0.0

1,218.5

(2.8)

322.2

0.0

689.0

0.0

208.9

(2.8)

(1.6)

Wastewater
Infrastructure Funds

50.0

0.0

0.0

TBD

TBD

Municipal
Consolidation
Competition

20.0

Subtotal FY 2017
Executive Budget
Actions

New Competitive
School Grants
Grand Total FY
2017 Executive
Budget Actions

28.0

TBD

TBD

0.0

TBD

TBD

1,316.5

322.2

689.0

208.9

(1.6)

0.0

440

0.0

0.0

0.0

11. M

ENTAL HYGIENE

The FY 2017 Executive Budget supports the

expansion of community-based care, strengthens the

oversight of services for vulnerable persons, and makes

investments to ensure that individuals are served safely

in the most integrated and cost-effective setting

possible.

Overview
The Mental Hygiene agencies and associated not-for-

profits provide services to individuals with mental

illness, developmental disabilities, and addictions.

These agencies are comprised of the Office of Mental

Health (OMH), the Office for People with Developmental
Disabilities (OPWDD), the Office of Alcoholism and

Substance Abuse Services (OASAS), the Developmental

Disabilities Planning Council (DDPC), and the Justice
Center for the Protection of People with Special Needs

(Justice Center). The Mental Hygiene agencies support

services for more than 1 million individuals, including

more than 700,000 people with mental illness, 245,000

441

people with chemical dependencies or gambling

problems, and 130,000 individuals with developmental

disabilities.

Caring for New Yorks Vulnerable Citizens

The States Mental Hygiene system provides care

and services for individuals in institutional facilities,

community residences and community settings. The

State operates institutional and community-based

services

and

research

facilities,

and

oversees

residential, outpatient, employment, clinic, habilitative,

and treatment programs operated by not-for-profit

provider agencies that help individuals live in the

setting they desire and lead full and productive lives.

The Budget reflects the Governors ongoing efforts

to fundamentally improve the protection and care of

vulnerable

individuals.

Strategic

investments

are

funded by programmatic efficiencies and system-wide

solutions to reduce State operations costs in service

delivery, purchasing, business services, information
technology, and other areas. To ensure that individuals

receive appropriate services, the Budget increases

funding for community-based programs, and redirects

442

funding from high-cost institutional services to more

effective lower-cost program models that provide

expanded services to more people.

Proposed actions for the Mental Hygiene agencies

include enhancing community mental health services,

right-sizing and improving State-operated inpatient

services, investing in behavioral health provider

systems to help avoid more costly inpatient services,

enhancing employment opportunities for individuals

with disabilities, improving the investigatory process

for abuse and neglect complaints, placing cost controls

on State agency operations, and maximizing payments

from third-party payers.

The Executive Budget proposals result in Mental

Hygiene system spending of $8.2 billion in FY 2017,

reflecting annual spending growth of $260 million (3.3

percent). However, due to technical adjustments such as

interactions with the Department of Health (DOH)

Global Cap, and recognition of the previous years costs

for a 53rd Medicaid cycle, the 27th Institutional payroll,

and non-centralized billings for ITS services, projected
spending decreases by $219 million.

443

Summary of Spending (All Funds)

Category
OPWDD
OMH
OASAS
Justice Center
DDPC
Subtotal
53rd Medicaid Cycle
and 27th Payroll
NPS Transfer to OITS
Adjustments*
Total

Change
FY 2016
FY 2017
Dollar
(millions) (millions) (millions)
Percent
4,039.3
4,213.9
174.6
4.3
3,296.1
3,369.1
73.0
2.2
592.4
603.6
11.2
1.9
41.8
42.7
0.8
2.0
4.2
4.2
0.0
0.0
7,973.8
8,233.4
259.6
3.3
168.6
0.0
(168.6)
N/A
27.3
(908.6)
7,261.1

0.0
(1,191.1)
7,042.3

(27.3)
(282.5)
(218.8)

N/A
N/A
(3.0)

*Adjustments reflect spending of $909 million in FY 2016 and $1.1 billion in FY

2017 for OPWDD services that are reflected in DOH Medicaid spending.

Proposed FY 2017 Budget Actions

OPWDD
Over the past five years, Governor Cuomo has taken

substantial steps to ensure the continued health and

safety of individuals with developmental disabilities,

and to improve the overall quality, availability and cost-

effectiveness of community-based, person-centered

services. This Budget continues the long-standing

commitment to support individuals with developmental

disabilities in the most appropriate community-based

settings, and reflects a 4.3 annual percent spending
increase. Specifically, the Executive Budget will:
444

Continue to Improve the Quality and Variety

of Services. Over the past 18 months, OPWDD
has made significant progress in providing
services to people with intellectual and/or
developmental disabilities through new resource
investments and reallocation of existing
resources. During this time, approximately 2,600
new people received certified community
residential housing, including individuals
transitioning from their homes, institutional
facilities and school residential programs. At the
same time, 3,800 individuals were new to
employment supports; 2,300 people were
provided the opportunity to self-direct their
services; 5,500 new individuals received respite
services; and 6,400 people were new to day
service opportunities. In addition, approximately
$65 million in Balancing Incentive Program (BIP)
transformation grants were awarded to over 100
agency providers to develop systematic
improvements to delivery systems, enhance
community
integration,
and
increase
employment opportunities for individuals with
developmental disabilities.

Implement the Recommendations of the

Transformation Panel. In early 2015, a
Transformation Panel was formed to share and
discuss ideas to help shape the future of the
OPWDD system. Members included individuals
with developmental disabilities, parents,
providers and advocates. Their formal
recommendations will be released in 2016 and
OPWDD will develop and implement strategies
to enhance service delivery and provide high
quality community- integrated services.
445

Invest $120 Million for OPWDD New Service

Opportunities. This annual investment will
support new service opportunities for
individuals currently living at home or in
residential schools. Services will be based on
OPWDDs person-centered processes, which
include an individualized needs assessment.
These new resources will support expanded
services throughout OPWDDs continuum of
care, including certified and non-certified
residential opportunities, day programs,
employment, case management, and respite
services for qualifying individuals. This level of
funding will support up to 6,000 new or
expanded opportunities for individuals with
developmental disabilities to support the array
of services necessary to meet their individual
needs, including needs identified in OPWDDs
recent Residential Request List survey. This
funding is in addition to separate investments
for the transition of individuals from
institutional settings.

Invest $15 Million in Expanded Affordable

Housing. In FY 2017, OPWDD will provide an
additional $10 million in capital funding ($15
million in total) to support the development of
affordable housing, which will ensure the
availability of safe and accessible residential
opportunities for individuals with intellectual
and/or developmental disabilities.

Invest $15 Million to Expand Crisis Services.

In 2014, OPWDD implemented START (Systemic
Therapeutic
Assessment,
Respite
and
Treatment) programs in two geographic regions.
446

OMH

START is a crisis and prevention response model

focused on ensuring effective treatment and
reducing dependency on higher levels of service;
OPWDD will invest an additional $15 million to
expand these services to other regions.

Dedicate
$24
Million
to
Transition
Individuals to More Appropriate CommunityBased Settings. Consistent with the Olmstead
Cabinet report and the Federal Centers for
Medicare
&
Medicaid
Services
(CMS)
requirements, the Budget continues to transition
individuals from developmental centers (52
individuals) and intermediate care facilities (100
individuals) to more integrated, communitybased support systems. As part of this effort,
OPWDD will utilize a combination of not-forprofit and State-operated services to deliver
appropriate community-based services specific
to individualized needs.

The Executive Budget builds on Governor Cuomos

ongoing efforts to expand community services and

transition individuals to more appropriate community
settings. Specifically, the Budget will:

Continue to Improve the Quality and Variety

of Services. With investments in communitybased services made in FY 2016, OMH has
developed new mobile crisis teams, expanded
clinic services, provided additional peer support
447

services, and funded additional supported

housing units throughout the State. The
expansion in community investments since FY
2015 has resulted in 7,500 new individuals
receiving services and funded nearly 850
supported housing beds. This funding was also
used to support rental subsidies for over 14,000
supported housing units statewide. The success
of these community investments has resulted in
the reduction of over 400 unnecessary, vacant
inpatient beds.

Invest $16 Million in Additional Community

Services. Building upon the community
reinvestments funded in the FY 2016 Enacted
Budget, this additional annual investment will be
used to expand a variety of community services
based on regional needs reflecting stakeholder
input, and is expected to reduce the need for
more costly inpatient beds.

Expand Services for Children. The Budget

proposes to provide six new State Plan
Medicaid
services
for
children:
crisis
intervention, community psychiatric support and
treatment, psychosocial rehabilitation services,
family peer support services, youth peer training
and support services, and services from other
licensed practitioners. These new services focus
on earlier intervention for children experiencing
behavioral health issues, helping to keep
children with their families, thus preventing the
need for more costly, high-intensity services and
out-of-home placements.

448

Provide $50 Million to Support New

Residential Opportunities. The Budget
provides full annual support to continue ongoing
residential projects, including nearly 1,200 units
planned to open this year from the New
York/New York III homeless housing agreement
and about 800 other residential pipeline beds.
Invest $1 Million to Implement Raise the Age.
OMH will provide additional staffing resources to
provide mental health services to support
minors who, in 2016, will be relocating from
several rehabilitation facilities to a single
separate juvenile facility. OMH will partner with
the Office for Children and Family Services
(OCFS) and the Department of Corrections and
Community Supervision (DOCCS) on this effort.

Establish Jail-Based Restoration Programs for

Felony-level Defendants. OMH will work with
participating counties to develop restoration
units for felony-level defendants while they are
restored to competency as they await trial. The
restoration units will be operated in counties
that volunteer to participate, and will be
maintained as separate residential treatment
units within the jail. This program has been
identified as a best practice by the National
Judicial College, and has been implemented in 10
other states with well-documented success. This
program will also result in reduced operational
costs for the State and participating counties.

449

Provide Mental Health Supports for OMH

Long Term Care Patients Moving to Skilled
Nursing Facilities or Managed Long Term
Care Programs. OMH will utilize either a
Managed Long Term Care (MLTC) Program with
wrap-around community support, or a Skilled
Nursing Facility (SNF) to serve approximately
100 long-term care patients. This initiative will
ensure that the population requiring both longterm care and mental health services will receive
care in more appropriate settings.

OASAS

The Executive Budget supports OASAS continued

efforts to better serve individuals with dependencies on

alcohol and chemical substances, and to provide

services to those experiencing problem gambling issues.

Specifically, the Budget will:

Combat the Heroin Epidemic. In total, the

Budget provides $141 million, an increase of $6
million from FY 2016, to address the growing
heroin and opiate epidemic in communities
across the State. These funds will continue to
support prevention, treatment and recovery
programs targeted toward chemical dependency,
residential service opportunities, and public
awareness and education activities. Specifically,
the funding will enable OASAS to implement the
following initiatives:
450

o Family Support Navigators. Navigators will

assist and inform those seeking treatment
and their families of options for insurance
coverage and OASAS treatment systems.

o On-Call Peers. Peers will be available to

assist individuals who are in need of
Substance Use Disorder (SUD) treatment to
make the connection from hospital
emergency rooms to the OASAS treatment
system.

o Adolescent Clubhouses. These safe,

welcoming spaces will help teens and young
adults who are in recovery or are at-risk for
SUD to develop social skills that promote
long-term health, wellness, recovery and a
drug-free lifestyle.

o Recovery Community and Outreach

Centers. These facilities provide recovery
supports in a comfortable environment to
individuals and their families that are in, or
seeking, recovery from SUDs. The centers
provide information and education on how to
access treatment supports and wellness
activities, and they extend peer supports and
volunteers to assist in all areas of the Centers
operations.

o Treatment Availability Tool. This on-line

tool will allow New Yorkers to search (in real
time) for available treatment statewide; and

o Kitchen Table Toolkit and Talk2Prevent.

New resources are offered including videos
which can be used by parents, teachers and
community members to help begin
451

conversations with youth concerning the

health risks and dangerous consequences of
heroin and prescription painkiller abuse.
Talk2Prevent is designed to help New
Yorkers talk early and often with your kids
regarding alcohol and its dangers.

Transition Behavioral Health to Managed

Care. The Budget supports a total of $7 million in
new Medicaid rate enhancements to stabilize
providers as they transition to managed care,
including those that operate Free Standing
Inpatient Alcohol Rehabilitation, Residential
Rehabilitation Services for Youth, Residential
Detox and Outpatient Detox services.

Implement Residential Redesign. OASAS will

continue to implement a redesign of residential
treatment capacity which creates flexibility
within the system to allow providers to serve
individuals in need of short-term and long-term
treatment as they detox from heroin and
prescription painkillers.
Increase Housing and Community Capacity.
The Budget includes $7 million in new funding
for 300 new beds scheduled to be developed
over the next two years. This includes 170 new
congregate care beds associated with the NY/NY
III program and 130 new beds in Suffolk, Albany,
and Westchester counties, and in the Southern
Tier to support the Governors Combat Heroin
initiative.
Provide for Synthetic Drug Testing. The
Budget also includes $2 million in new capital
funding to purchase synthetic drug testing
452

devices to be used by State Police and local law

enforcement officials. These portable, hand-held
machines can instantly analyze unknown
substances and determine if they contain any
dangerous synthetics drugs or any other
substance. This information will enable officers
to more accurately distinguish between
individuals with symptoms of drug use and those
experiencing non-drug induced psychotic
episodes, as well as enable quicker treatment of
these individuals if they are admitted to a
hospital.

Justice Center

To protect the health and safety of vulnerable

individuals in the States care, the Justice Center has

primary responsibility for receiving, investigating

and/or reviewing abuse and neglect allegations at

certain facilities and programs that are operated,

certified, or licensed by the following six agencies: OMH,

OPWDD, OASAS, DOH, OCFS, and the State Education

Department. The Justice Center is responsible for

ensuring the safety and well-being of the approximately
one million adults and children with physical or
intellectual disabilities and who require services or

placement from one of the over 3000 facilities or

service providers overseen by the six State agencies.
453

To fulfill its mission, the agency operates 13

locations across the State, and employs investigators,

prosecutors, advocates, and others. The Justice Center

investigates nearly 10,000 reported allegations of abuse
and neglect annually, and in 2015 assumed more

investigative responsibilities in State-operated facilities.

Operational efficiencies have resulted in an accelerated
case closure process, allowing the agency to close 4,000

more cases than were opened during the year and

permanently

accelerate

the

average

case-closure

timeframe. The Executive Budget recommends $54.5

million in new appropriations, providing the necessary
funding for the agency to perform its core functions
timely and efficiently. Specific investments include the
statewide training of local law enforcement officers to

facilitate

effective

interviewing

techniques

individuals with special needs and disabilities.

of

Multi-Agency Budget Actions

The Executive Budget includes $12 million to

support the statutorily driven Cost of Living Adjustment

and Medicaid trend at not-for-profits that provide
services on behalf of OPWDD, OMH and OASAS.
454

The Budget continues longstanding flexibility in the

delivery of services operated, funded, or approved by

various State agencies, including OMH, OPWDD, OASAS,

and OCFS by extending for five years the existing
requirements for certain social work and mental health
workers.

455

456

12. P

UBLIC SAFETY

The FY 2017 Executive Budget reflects an approach

to public safety that is smart, tough and fair, while

providing new resources to State and local responders

to better protect New York families and their property
during emergencies.

Overview
The State spends $4.8 billion annually to protect

New York residents. The public safety agencies assist

local communities with crime prevention, supervise

criminal offenders both in prison and in the community,

patrol the highways, protect critical State assets, and

respond to natural disasters and terrorist threats.

Focusing on Emergency Preparedness and

Crime Prevention
Emergency Preparedness
In September 2014, Governor Cuomo initiated a

counter terrorism surge in the New York City metro

area with enhanced security measures and an increased

457

State Police, Metropolitan Transportation Authority

police, and National Guard presence. This year, the State

began utilizing the See Something, Send Something

mobile app to help New Yorkers report suspicious

activity. The Governor also proposed, through the
Department of Financial Services, new anti-terrorism

and anti-money laundering regulations to detect, deter,

and prevent illicit transactions that fuel worldwide

criminal and terrorist networks. The FY 2017 Executive

Budget builds upon these actions and strengthens

preparedness by expanding the current surge to deploy

law enforcement to critical infrastructure throughout
the state.

Criminal Justice
New York has one of the lowest crime rates in the

country, and also has the lowest imprisonment rate of

any large state. From 2005 to 2014, the crime rate in

New York declined 18 percent, with a continued decline
in the first six months of 2015. In 2014, the number of

major crimes committed reached the lowest levels ever

recorded, when there were 80,014 fewer major crimes

reported statewide than in 2005. Simultaneous with

458

this significant decline in crime, the States prison

population has fallen from a peak of 72,600 in 1999 to a

current population of approximately 53,000 the
lowest level in more than two decades.

Last year, the Governor issued an Executive Order to

establish a facility to house 16- and 17-year old youth

who are in the States correctional system. This action
will relocate certain juvenile offenders from adult

prison facilities into an age-appropriate alternative. The

Governor also offered pardons to persons convicted of

non-violent crimes committed when they were 16 or 17
years old, and who have since lived crime-free for 10 or
more years, giving an opportunity for over 10,000

people to escape the limitations of a criminal record

and become productive citizens. The FY 2017 Executive

Budget takes additional measures to advance the
Governors Raise the Age Campaign.

459

Summary of All Funds Spending

Category
Department of
Corrections and
Community
Supervision
Division of State
Police
Division of Criminal
Justice Services
Division of
Homeland Security
and Emergency
Services
All Other
Total Public Safety

Change
FY 2016
FY 2017
Dollar
(millions) (millions) (millions)
Percent
2,988
2,943
(45)
-1.5%
730

726

(4)

-0.5%

577

578

0.2%

229

232

260
4,784

305
4,784

45
0

1.3%

17.2%
0.0%

Spending for public safety agencies is projected at

$4.8 billion for FY 2017. The year-to-year change in the

Department of Corrections and Community Supervision

is primarily attributable to the elimination of funding
for a non-recurring 27th institutional payroll.

Proposed FY 2017 Budget Actions

Disaster Recovery and Preparedness

Continue the Surge and Make State Police

Presence in New York City Permanent.
Reinforcing the Governors 2014 counterterrorism surge, the State will establish a
permanent State Police presence in New York
460

City. These specially-trained uniformed State

Troopers will partner with dozens of
investigators to strengthen the law enforcement
presence in and around New York Citys transit
hubs and other critical infrastructure.
Protect Critical Infrastructure. The State
currently
engages
public
and
private
organizations to conduct security assessments of
critical infrastructure and key resources. These
assessments help local governments and
businesses develop comprehensive protection
strategies against evolving threats. The FY 2017
Executive Budget will increase the number of
exercises performed annually and ensure
exercises occur in each of New York States 16
Counter Terrorism Zones.

Criminal Justice

Raise the Age of Juvenile Jurisdiction. New

York is one of only two states in which the age of
juvenile jurisdiction ends on a youths 16th
birthday. This means that all 16 and 17 year olds
are processed in the adult criminal court system,
and not through the Family Courts, regardless of
the nature of their offense. All other states,
except for North Carolina, have set this age at 17
or 18 years old.

Beginning in August 2016, 16 and 17 year old

youth will be housed at Hudson Correctional
Facility, currently a DOCCS operated facility that
is undergoing transformation to appropriately
house and serve younger offenders. Youth will
receive
specialized
age-appropriate
461

programming, and individuals presenting with

mental health needs will have access to services
provided by staff from the Office of Mental
Health.

The FY 2017 Executive Budget reflects the

next steps in juvenile justice reforms through
legislation to raise the age of juvenile jurisdiction
to age 17 on January 1, 2018 and to age 18 on
January 1, 2019. Additional reform measures
include comprehensive diversion, probation, and
programming services for 16 and 17 year old
youth who will be involved in the juvenile justice
system.

Re-entry Initiatives. In FY 2017, the State will

undertake reforms to hold fewer people in
prison pre-trial, bring sentencing practices into
the 21st century and expand alternatives to
incarceration. Through a comprehensive reentry initiative, New York will provide citizens
who enter the criminal justice system the
opportunity to rehabilitate, return home, and
contribute to their communities.
Alternatives to Incarceration. In FY 2017, $1
million will be invested to expand and
modernize ATI programs, ensuring that they are
focused on high-risk and high-need populations.

Video Visitation. Incarcerated individuals who

have regular contact with family members fare
better upon release. This initiative will increase
opportunities for video visitation between
parents, children, and other family members.

462

Reduce
Criminal
Behavior
through
Education. Expand college level education
programs for incarcerated individuals through
$7.5 million investment of criminal forfeiture
funds obtained by the Manhattan District
Attorney.

Provide Transitional Support. The first six

months immediately following a persons release
from the criminal justice system are the most
crucial. The Governors re-entry agenda supports
transitional
housing,
connections
to
employment, and provision of medical and
mental health services.

463

464

13. S

TATE WORKFORCE

Overview
The New York State workforce delivers vital public

services and manages a range of critical facilities and

provider networks. There are 180,252 full-time

equivalent State employees within 59 Executive

agencies, the SUNY and CUNY systems and in the Offices

of the Attorney General and State Comptroller. The

Executive has direct control over 65 percent of the State

workforce (118,311 full-time equivalent employees).

Staffing levels are expected to remain relatively stable

in FY 2017.

Category
Workforce Subject to
Direct Executive Control
University Systems
Office of the State
Comptroller
Department of Law
Grand Total

FY 2017
3/31/16 3/31/17
Est.
Est.
118,311
118,538
57,465
2,643

1,833
180,252

57,465
2,663

1,839
180,505

Change
Number Percent
227

0.19

6
253

0.33
0.14

0
20

0.00
0.76

Approximately 94 percent of the State workforce is

unionized with the remaining portion serving in

465

Management/Confidential (M/C) assignments. State

employees receive an average compensation (salary

and other pay) of roughly $69,000. Over the past five

fiscal years, the State has spent an average of $6.6

billion on employee fringe benefit programs, including

employee and retiree health insurance, pensions and

workers compensation.

In FY 2013, the State enacted Tier VI pension reform

to help control escalating retirement costs for State

government, local governments and school districts. As

of April 1, 2012, all newly hired public employees

belong to Tier VI. This reform will significantly diminish

long-term pension costs, saving the State, local
governments and school districts more than $80 billion
over 30 years.

Consistent with Governor Cuomos push to restore

economic justice by making New York the first state in

the nation to enact a $15 minimum wage for all

workers, the Budget includes the phased-in minimum

wage increase for State employees and employees of the

State University of New York.

466

Promoting
Workforce
Affordability

Fairness

and

Minimum Wage for State Workers

The minimum wage for State workers is being

increased on the same phased-in schedule as is

currently underway for fast food workers. The initial

increase took effect in the first pay period beginning on

or after December 31, 2015. As of that pay period, all

State workers are receiving an hourly wage that is no

less than:

$10.50 per hour for State employees whose job

location is within the five boroughs of New York
City; or

$9.75 per hour for State employees in all other

job locations.

This initial increase will benefit nearly 2,000

employees. When fully phased-in on July 1, 2021, the

$15 minimum wage will benefit approximately 10,000
Executive

Branch

State

employees

(including

employees of the Office of the Attorney General and

Office of the State Comptroller), as well as employees of
the State Legislature and the State Judiciary. The
minimum wage is also being increased for more than
28,000 employees of the State University of New York.
467

The immediate costs of the increases will be absorbed

in agency budgets as a result of increased efficiencies.

Collective Bargaining
Most State employee union contracts will expire at

the end of FY 2016. Employees represented by the

Public Employees Federation (PEF) and the Police

Benevolent Association of New York State (PBANYS) are

currently working under expired contracts. The union

representing State Police Investigators has had no

contract in place for the period beginning April 2011.

The State is currently engaged in collective bargaining

with these unions. The State Police Troopers and

Commissioned and Non-Commissioned Officers whose

contracts expire at the end of FY 2018 will receive a 1.5

percent general salary increase at the start of FY 2017
and again in FY 2018.

Meeting Emerging Priorities

Since 2013, the workforce levels in agencies subject

to direct Executive control have remained stable, with

annual changes of 1 percent or less. The FY 2017

Executive Budget continues that trend there are no

468

planned layoffs and no newly announced facility

closures.

In FY 2017, the State workforce will remain stable in

most agencies or modestly decline via attrition

primarily associated with continued efforts to improve
operating efficiencies. The Budget includes workforce
increases

in

select

State

agencies

to

support

investments to meet emerging priorities, including:

The Department of Corrections and

Community Supervision. Additional staff will
support a variety of efforts, including meeting
the requirements of Executive Order #150,
which requires 16 and 17 year old youth to be
housed at a separate facility from adults. Youth
offenders will be transitioned to the Hudson
Correctional Facility where they will receive
specialized age-appropriate programming and
individuals with mental health needs will have
access to services provided by the Office of
Mental Health.

The Department of Health. Additional staff will

support the continued take-over of Medicaid
Administration from the counties.
The Office of General Services. Additional staff
at the Business Services Center will support
human resource and finance operations for
various State agencies.

469

Employee Fringe Benefits and Fixed Costs

The State provides a variety of fringe benefits to its

current and former employees, including health

insurance,
coverage.

Category
Health Insurance
Pensions
Social Security
Workers
Compensation
All Other
Total

pensions

and

FY 2016
(millions)
3,479
2,202
981
454
509
7,625

workers

FY 2017
(millions)
3,709
2,370
966
357
540
7,942

compensation

Change
Dollars
(millions) Percent
230
6.6
168
7.6
(15)
-1.5
(97)
-21.4
31
317

6.1
4.2

All Funds spending is projected to increase by $317

million (4.2%). The health insurance cost increase is

primarily attributable to increased prescription drug
costs, including increased utilization of specialty drugs

for chronic conditions and price inflation for most other

drugs. Pension costs are growing primarily due to the

increase in the graded rate associated with pension

amortizations, as determined by the pension systems.

Workers compensation costs are increasing based on

growth in the average weekly wage for benefit
470

calculations and medical costs, partially offset by the

use of $140 million in existing reserve funds.

Proposed FY 2017 Actions

State Retiree Health Insurance Reform
The Executive Budget includes the following three

proposals to help restrain the growth in State retiree

health care costs:

Implement Differential Health Care Premium

Contributions for Certain New Retirees Based
on Years of Service. The Budget provides more
equitable funding for retiree health insurance
coverage for certain new civilian State retirees
with less than 30 years of service. Currently, an
employee retiring with 10 years of service pays
the same amount for their health insurance
coverage as an employee who retires with 30
years of service. Under this proposal, similar to
the calculation for pension benefits, new civilian
retirees would pay differential healthcare
premiums based on years of service. Those
retiring with less than 30 years of service would
have to contribute a greater share of their health
insurance costs. Costs would be proportionately
greater for an individual with ten years of
service, and gradually decrease until they are no
different than current levels once an individual
reaches 30 years of service. This change would
471

take effect with new retirees as of October 1,

2016.

Eliminate Reimbursement for the Medicare

Part B Income Related Monthly Adjustment
Amounts (IRMAA) for High Income State
Retirees. The Federal government imposed this
supplemental IRMAA premium in 2007 to
require high income retirees to pay more of the
increasing Medicare costs. New York, and only
one
other
state
(Hawaii),
provide
reimbursement of the premium to all high
income retirees and their dependents. This
taxpayer subsidy of New York States high
income retirees currently ranges from $584
annually for new retirees with an Adjusted Gross
Income (AGI) between $85,000 and $107,000, to
a subsidy of $3,216 annually for new retirees
with AGI above $214,000. The Budget eliminates
this reimbursement effective January 1, 2016.

Maintain Reimbursement of the Medicare

Part B Standard Premium for New State
Retirees at $104.90 per month. New York is
one of only three states (along with Hawaii and
California) that provide full reimbursement of
the standard premium to all eligible retirees and
their dependents. Under this proposal, New York
would continue to reimburse the standard
premium for new and existing retirees ($104.90
per month), but would not provide
reimbursement for an unfunded Federal Cost of
Living Adjustment imposed on new retirees,
IRMAA payers or non-Social Security payers
($17 per month). This change would take effect
October 1, 2016.
472

14. T

RANSPORTATION

The FY 2017 Executive Budget makes new capital

investments to improve the States transportation

system, increase mobility, and support economic

growth.

The

Budget

reflects

the

Governors

commitment of $8.3 billion in State resources toward

the Metropolitan Transportation Authoritys (MTAs)

$26.1 billion 2015-2019 transit capital plan that will

renew, enhance and expand the MTA network. The

Budget also funds an unprecedented $22.1 billion 5year State Transportation Capital Plan. This Plan will

improve roads, bridges, airports, rail facilities, ports and

transit systems funded through the Department of

Transportation (DOT) budget and make State-funded
investments in the Thruway to lessen the capital burden

on toll payers. The State Plan covers the same period as

the MTA plan (SFY 2016 through SFY 2020) and builds

on $18.3 billion in core DOT funding and $1.3 billion in

SFY 2016 Thruway Stabilization funds by adding $1.8
billion in new State and Federal resources and $700
million of new Thruway Stabilization funding.
473

As the result of investments in this Budget, tolls on

all Thruway facilities, including the existing Tappan Zee

Bridge and the New NY Bridge that will replace it, will
be held at current levels until at least 2020. The Budget

also includes $340 million to fund a tax credit that will

defray Thruway toll expenses for business and

passenger electronic pass account holders that meet

certain use thresholds.

Legislation included with the Budget will transfer

the New York State Canal Corporation from the

Thruway Authority to the New York Power Authority.

Overview

The States transportation system is operated,

maintained and administered by a network of State and

local agencies and public authorities. The Department of

Transportation (DOT) is responsible for construction,

reconstruction, maintenance, and snow and ice removal

for more than 43,000 State highway lane miles and

more than 7,800 bridges. In addition, DOT provides

funding for rail, airport, bicycle, pedestrian, and canal

programs as well as local government highway and
bridge construction.

474

The Department also provides coordination and

funding for more than 130 public transportation

operators including the Metropolitan Transportation

Authority

(MTA),

the

four

Upstate

regional

transportation authorities, and other (usually countysponsored) transit systems. These systems provide bus,

subway, commuter rail and light rail services as well as

paratransit services designed to meet the needs of the

disabled. The MTA provides transit and commuter

services in the New York City region to over two and a

half billion passengers who ride the subways, buses and

commuter rail systems each year.

The States transportation programs also include the

Department of Motor Vehicles (DMV), which operates

27 district and branch offices and provides services via

county clerk offices acting as DMV agents at 102

locations throughout the State. DMV issues licenses,

non-driver

identification

cards

and

vehicle

registrations, conducts road tests, monitors driver

training, and performs enforcement activities. DMV

conducts more than 20 million customer transactions

annually, and is projected to collect more than $1.8

billion in revenue for the State and localities in FY 2017.

New Yorkers rely on credentialing and identification

475

documents issued by DMV to conduct financial

transactions, obtain employment, and board aircraft,
among other uses.

The Thruway Authority operates a 570-mile

highway system, including the 426-mile mainline from

Buffalo to New York City. Its subsidiary, the New York

State Canal Corporation, which operates the 524-mile

navigable waterway, will be transferred to the New

York Power Authority under legislation proposed in the

FY 2017 Executive Budget.

The New York State Bridge Authority is responsible

for five bridges spanning the Hudson River. These and

other transportation-related authorities are primarily
financed through toll revenue.

Investing in a Safe, Reliable Transportation

System
Department of Transportation
For the transportation plan period that began in FY

2016, the Executive Budget provides 5-year funding for

a DOT capital program of over $22.1 billion, including
State-funded investments in the Thruway. The DOT

total reflects previously planned core funding of $18.3

476

billion, increased by $1.1 billion of new State funds and

$700 million of new Federal funds anticipated under the

Fixing Americas Surface Transportation Act, or FAST

Act. These increases will help facilitate the capital

improvement of highways, bridges, rail, aviation
infrastructure, non-MTA transit, and DOT facilities.

Included within DOTs Capital Plan is funding to

complete the initial phase of the Hudson Links Bus

Rapid Transit project. This funding fulfills the
Governors

commitment

to

ensure

that

the

infrastructure is in place to deploy and operate the new

service in time for the opening of the New NY Bridge.

A new $200 million Upstate Airport Economic

Development and Revitalization Competition is also

included in the increased funding.

Funding for local highway and bridge projects under

the Consolidated Highway Improvement Program

(CHIPS) and Marchiselli program is maintained at last
years level of $477.8 million.

The new plan also includes the launch of three new

initiatives BRIDGE NY, PAVE NY, and the Extreme

Weather Infrastructure Hardening Program. These

initiatives will further improve conditions on State and

local roads and bridges, as well as provide resiliency to

477

roadways that are particularly susceptible to weather

events. Over the plan period, $2.5 billion is associated

with these programs.

DOTs capital program is supported by Federal aid,

State capital projects funds, financial settlement funds,

dedicated taxes and fees deposited in the Dedicated

Highway and Bridge Trust Fund, and a significant

subsidy that the Trust Fund receives from the General

Fund.

Mass Transit
Since 1975, New York State has provided transit

system operating assistance through the Statewide

Mass Transportation Operating Assistance (STOA)
program. Today this multi-billion dollar aid program

reflects the importance of the services provided by

transit systems that provide an estimated 3.8 billion

rides annually. In FY 2016, State transit aid accounted
for approximately 35 percent of the operating resources
used to support the States transit systems.

The FY 2017 Executive Budget provides operating

support totaling $5.0 billion to transit systems. The

MTA will receive $4.5 billion, an increase of $201
478

million over current FY 2016 estimates. This includes a

$309 million contribution from the General Fund to

offset the revenue losses incurred by the MTA from

elimination of the payroll tax for small businesses. The

Budget provides $194 million in operating support for

upstate transit systems, an increase of $5 million or
2.6%, over FY 2016. The Executive Budget also provides

$20 million in capital support for Upstate systems, an

increase of $5 million over FY 2016 capital funding.

The Budget reflects the Governors commitment of

$8.3 billion in State resources toward funding the MTAs

$26.1 billion 2015-2019 transit capital plan. The Budget

includes legislation to authorize the remaining $7.3

billion of this commitment, and spending will continue

from the $1 billion FY 2016 appropriation, including

$750 million to support the MTAs 2015-2019 core

capital program and $250 million to advance the MTAs

Penn Station Access project.

Department of Motor Vehicles

Accounting for the steady increase in the volume

and complexity of its transactions, DMV has utilized

electronic and internet-based services to increase the

479

efficiency of transaction processing. These services also

provide customers with a faster and more convenient

alternative to visiting DMV offices. Currently, more than

four million transactions per year are processed

through the DMV website, and this number is expected
to continue to rise as customers take advantage of
online transactions. Building on the success of previous

customer service initiatives, DMV will continue to

enhance the customer experience, employing office

kiosks, an improved queuing system, and the use of

greeters to answer questions, review paperwork, and

direct customers to the most expedient means of

completing their transaction. DMVs website has also

been substantially improved to provide a more

responsive design.

Thruway Authority
The Thruway is a vital transportation artery that

connects people to their jobs and their families and

moves billions of dollars of products to market. The FY

2017 Executive Budget includes a new appropriation of

$700 million from the Special Infrastructure Account for

the Thruway Stabilization program. This money will

480

support capital investment on the Thruway system,

complementing the $1.285 billion appropriated for this

program in FY 2016. Together, this State support will

allow the Authority to avoid raising tolls on any of its
facilities until at least 2020.

In 2012, the Thruway awarded a $3.9 billion design-

build contract for the replacement of the Tappan Zee

Bridge. The New NY Bridge will form the centerpiece of

the regions transportation system, ensuring the

connection of communities and economic centers

across the Hudson River for generations to come. In

addition to resources from the Thruway Stabilization

program, funding sources for the Bridge project include

a $1.6 billion Federal TIFIA loan, the largest in TIFIA

program history. Construction began in the spring of

2013 and is expected to take approximately five years.

The Bridge is on-budget and on-schedule for completion
in 2018.

The Executive Budget also includes legislation to

transfer the New York State Canal Corporation from the

Thruway Authority to the New York Power Authority.

The transfer allows the Budget to eliminate annual

operating subsidies to the Thruway Authority. The

subsidies, which began in FY 2014 to offset the need for

481

a commercial toll increase, has totaled $85 million

annually, including the State takeover of personnel

costs of the Division of State Police Troop T which

patrols the Thruway, a direct appropriation, and the

waiver of certain annual billings due from the Authority
to the State.

Summary of State Funds Spending

Change
Category

FY 2016
(millions)

FY 2017
(millions)

Dollar
(millions)

Percent

Transportation Spending

8,429

8,663

234

2.8

Metropolitan
Transportation Authority

4,908

4,986

78

1.6

Department of
Transportation

Department of Motor
Vehicles
Thruway Authority

3,220
278

3,402

182

275

23

(3)

Proposed FY 2017 Budget Actions

(23)

5.7
(1.1)

(100)

The Executive Budget provides capital funding to

restore

and

improve

the

States

transportation

infrastructure, increases transit aid to support the vital

role that transit systems play in the States economy

and continues investments that will support DMVs
efforts to better serve its customers.
482

DOT Capital Highlights

Airport
Economic
Development
and
Revitalization Competition Program. The
Budget provides $200 million for an Upstate
competition to accelerate investments in
commercial passenger and cargo service
airports, creating thousands of well-paying jobs
and promoting economic development. The State
will award grants to five airports of
approximately $40 million each. Grants will fund
projects that enhance safety, improve operations
and access, reduce environmental impact, and
create better passenger experiences. Successful
proposals will create jobs, incorporate
sustainable green building techniques, use
renewable energy, demonstrate support from
airlines and the community, leverage private
investments, and demonstrate cost effectiveness.
BRIDGE NY Program. The 5-year transportation
program includes $1 billion to replace,
rehabilitate and maintain vital State and local
bridges. By addressing the needs of at least 200
bridges across New York, this multi-year
initiative will protect public safety and support
economic growth and commercial activities.
PAVE NY Program. The 5-year program
includes $1 billion for State and local paving
projects that will ensure smoother rides for
passenger and commercial traffic and result in
fewer costly delays and slowdowns. Up to 1,300
lane miles of paving will be addressed over the
plan period.
483

Extreme Weather Infrastructure Hardening

Program. The plan includes $500 million over
the 5-year program period to improve roadways
that have proven susceptible to flooding and
other extreme weather related events so that
they remain safe and passable.

Preserve Local Capital Aid. Capital aid to local

governments for highway and bridge projects is
preserved, with $438.1 million provided for the
Consolidated Highway Improvement Program
(CHIPS) and $39.7 million for the Marchiselli
program.

Transit

Increase Transit Aid Levels. The Budget

proposes $5.0 billion in transit operating aid for
systems throughout the State. The MTA will
receive $4.5 billion, an increase of $201 million
from current FY 2016 estimates. Other transit
systems will receive $497 million, an increase of
$22 million from prior year operating aid levels
despite the deterioration of dedicated transit tax
revenue.
Verrazano Bridge Rebate Programs. The MTA
operating aid budget includes $10.3 million for
continuation of the commercial and Staten Island
resident rebate programs, fully funding the
States contribution.

484

Debt Service Costs. The Budget ends the annual

use of $20 million in mass transportation
operating assistance funds to pay for a portion of
State debt service associated with previously
issued MTA service contract bonds.

Upstate Transit. The Budget increases Upstate

operating aid by $5 million and capital aid for
Upstate is increased by $5 million.

Thruway Authority

Invest in Infrastructure and Freeze Tolls

Until at Least 2020. The Executive Budget
includes a new capital appropriation of $700
million, on top of last years commitment of
$1.285 billion, to support capital projects
throughout the Thruway system. This State
investment in Thruway infrastructure will allow
for tolls to be held at current rates until at least
2020.

Reduce Tolls for Frequent Thruway Users. To

lower the cost of traveling the New York State
Thruway for commuters and other heavy users,
and to lower the cost for businesses of bringing
products to market, the Budget provides a
nonrefundable credit for Thruway tolls paid
electronically. Drivers of passenger vehicles who
spend at least $50, annually, and businesses and
commercial account holders who spend between
$100 and $9,999, annually, in Thruway tolls
would receive a tax credit worth 50 percent of
tolls paid. For farmers, the Budget provides a
100 percent nonrefundable credit, regardless of
485

usage, for farm vehicle use on the Thruway. The

program would begin on January 1, 2016 and
sunset December 31, 2018. Over the three years,
drivers will save $340 million.

Transfer the Canal Corporation to the Power

Authority and Eliminate State Subsidies to
the Thruway Authority. Legislation in the
Budget transfers the New York State Canal
Corporation from the Thruway Authority to the
New York Power Authority, allowing for the
elimination of $85 million in annual State
operating subsidies to the Thruway.

486

15. L

EGISLATION

REQUIRED FOR THE BUDGET

Education, Labor and Family Assistance

Amend Education Law and make other changes

necessary to authorize School Aid and
implement education-related programs in the
Executive Budget
Amend Education Law to implement school
safety reforms in the Executive Budget
Re-establish funding parity for CUNY

Renew the NYSUNY 2020 and NYCUNY 2020

program

Establish the SUNY Stony Brook Affiliation

Escrow Fund
Enact the New York State DREAM Act

Extend and make conforming changes to various

scholarship and loan forgiveness programs

Allow public accounting firms to have minority

ownership by individuals who are not Certified
Public Accountants
Extend mayoral control over the New York City
public school system until June 30, 2019
Reform
Council

the

State

Apprenticeship

Increase the Minimum Wage

487

Training

Enhance the Urban Youth Jobs Tax Credit

Make statutory changes to comply with the

Federal Preventing Sex Trafficking and
Strengthening Families Act
Raise the Age of Juvenile Jurisdiction

Authorize the pass-through of any Federal

Supplemental Security Income Cost of Living
Adjustment which becomes effective on or after
January 1, 2017
Modify Mortgage Insurance Fund Utilization

Health and Mental Hygiene

Modify New York Citys local funding

contribution under the Medical Assistance
Program
Make statutory changes necessary to continue
implementation of Medicaid Redesign Team
recommendations

Extend the Physicians Excess Medical

Malpractice Program and amends its distribution
methodology
Extend
the
authorization
to
make
Disproportionate Share Payments, to operate
certain Special Needs Plans, to continue the
current reimbursement methodology for general
hospitals regarding behavioral rates, to operate
the Patient Centered Medical Home Program,
and to authorize temporary operators of adult
homes
488

Reform the Early Intervention program

Modify the Health Care Facility Transformation

program

Make statutory changes necessary to allow retail

business operations to operate limited services
clinics
Authorize the Office of Mental Health to continue
to recover Medicaid exempt income from
providers of community residences
Extend authorization for the Comprehensive
Psychiatric Emergency Program (CPEP)

Extend for five years the long-time exemption

from licensure for individuals working in certain
programs and services that are regulated,
operated, funded or approved by the Office of
Mental Health (OMH), the Office for People with
Developmental Disabilities (OPWDD), the Office
for Alcoholism and Substance Abuse Services
(OASAS), the Department of Health (DOH), the
State Office for the Aging (SOFA), the Office of
Children and Family Services (OCFS), the
Department of Corrections and Community
Services (DOCCS), the Office of Temporary and
Disability Assistance (OTDA) and/or local
governmental units or social service districts
Authorize the Office of Mental Health to work
with volunteering counties to establish jail-based
restoration to competency programs for
individuals awaiting trial

489

Provide authority for OMH and OPWDD to

appoint temporary operators for the continued
operation of programs and the provision of
services for persons with serious mental illness
and/or developmental disabilities

Permit State operated facilities to share clinical

records with managed care organizations

Authorize an OASAS licensed treatment facility

that provides alcohol and/or substance abuse
services to also operate a traditional physical
health care clinic, while remaining eligible for
DASNY financing

Public Protection and General Government

Establish the Criminal Justice Reform Act of 2016

Continue provisions relating to the disposition of

certain monies recovered by county district
attorneys
Suspend a subsidy to a revolving loan fund from
cell surcharge revenues

Enhance
the
State's
counter-terrorism
intelligence gathering and analysis operations
through the realignment of resources
Extend the tuition benefit program for members
of the New York Army and Air National Guard
and the Naval Militia that would otherwise
sunset
Make the Procurement Stewardship Act and the
Procurement Lobbying Law permanent
490

Enact Workers Compensation Reform

Establish Paid Family Leave

Establish the New York State Design and

Construction Corporation Act
Implement differential premiums for future New
York State Health Insurance Plan retirees based
on years of service

Cap reimbursement of the Medicare Part B

standard premium for new State retirees and
cease reimbursement for the Income Related
Monthly Adjustment Amounts for high income
State retirees in the New York State Health
Insurance Program

Extend binding arbitration, including provisions

for fiscally eligible municipalities, for three years
Amend the Dedicated Infrastructure Investment
Fund

Authorize transfers, temporary loans, and

amendments to miscellaneous capital/debt
provisions, including bond caps

Revenue

Convert STAR exemption benefit into a tax credit

for new homeowners
Cap annual growth in Basic and Enhanced STAR
exemption benefit at zero percent

Make Income Verification Procedure (IVP)

Mandatory
491

Allow late filing of renewal STAR and Senior

Citizens exemption applications based on
hardship or good cause shown
Convert NYC PIT STAR Credit into NYS PIT Credit

Authorize the Commissioner of Taxation and

Finance to make direct payments of STAR tax
savings to property owners in appropriate cases

Make
permanent
and
update
certain
modernization provisions of the Tax Law
Authorize additional credits of $8 million for
Low-Income Housing Credit for each of the next
five fiscal years
Extend the Hire-A-Vet Credit for two years

Extend the Empire State Commercial Production

Tax Credit for two years

Extend the Credit for Companies who Provide

Transportation to Individuals with Disabilities
for six years
Permanently extend the non-custodial Earned
Income Tax Credit (EITC)
Permanently extend
requirements

tax

shelter

reporting

Extend the Clean Heating Fuel Credit for three

years
Extend the Excelsior Jobs Program for five years

Amend the State and New York City corporate

tax reform statutes for technical amendments
Conform to new federal tax filing dates
492

Provide a corporate and personal income tax

small business tax cut
Establish education tax credits

Establish Thruway toll tax credits

Extend the alternative fuels tax exemptions for

five years

Establish additional alcohol beverage tasting

exemptions and production credits
Expand jeopardy assessments to the cigarette
and tobacco tax
Simplify the taxation of remarketed rooms

Eliminate charitable giving as a factor in

determining domicile for the estate tax

Amend State and local tax law for consistency

with Federal tax regulations on aviation fuel

Remove restriction for Morrisville College to be a

single lab testing provider and modify
requirements for horsemen to contribute to
equine steroid testing

Increase VLT purse enhancements from 1.0% to

1.6% and increase regulatory fee from 0.5% to
0.6% to finance escalating lab testing costs and
other expenses associated with equine health
and racing integrity
Adjust timing of reimbursement to the Gaming
Commission of per diem costs for harness racing
judges and starters

Provide for an additional commission for certain

Video Lottery Terminal facilities
493

Extend Monticello Video Lottery Terminal rates

for one year

Extend certain tax rates and certain simulcasting

provisions for one year
Extend the Video Lottery Gaming (VLG) vendor's
capital awards program for one year

Amend the Upstate New York Gaming and

Economic Development Act for technical changes

Transportation, Economic Development and

Environmental Conservation

Commit the State of New York and the City of

New York to fund $10.828 billion of the MTA's
2015-2019 Capital Program
Authorize MTA procurement reforms to create
savings for their 2015-19 Capital Plan

Enact project delivery reforms which generate

savings throughout the MTA's 2015-19 Capital
Plan period
Consolidate four existing Department of Motor
Vehicles' Special Revenue Funds within the
Dedicated Highway and Bridge Trust Fund
(DHBTF)
Bring New York State into compliance with
federal regulations regarding covered farm
vehicles as well as requiring a P endorsement to
operate certain vehicles

Extend the authorization of the New York State

Urban Development Corporation to administer
the Empire State Economic Development Fund
494

Extend the general loan powers of the New York

State Urban Development Corporation

Establish the Transformational Economic

Development Infrastructure and Revitalization
Projects Act
Authorize and direct the Comptroller to receive
for deposit to the credit of the General Fund a
payment of up to $913,000 from the New York
State Energy Research and Development
Authority
Authorize the New York State Energy Research
and Development Authority to finance a portion
of its research, development and demonstration,
policy and planning, and Fuel NY programs and
to finance the Department of Environmental
Conservations climate change program, from an
assessment on gas and electric corporations

Authorize the Department of Health to finance

certain activities with revenues generated from
an assessment on cable television companies
Reduce the administrative burden associated
with the Public Service Commission's review of
municipal and investor owned utility rate
requests
Extend for one year the authority of the
Secretary of State to charge increased fees for
expedited handling of documents

Place responsibility for mailing a copy of service

of process with plaintiffs rather than the
Department of State (DOS)
495

Create a statutory model by which combative

sports would be licensed and regulated by the
State

Extend the authorization of the Dormitory

Authority of the State of New York to form
subsidiaries
Authorize the transfer of the New York State
Canal Corporation to the New York Power
Authority
Enact the Private Activity Bond Allocation Act of
2016, to extend authorization for the issuance of
tax exempt bonds for eligible purposes

Enhance the marketing of New York farm

products by authorizing the Empire State
Development Corporation, in cooperation with
the Department of Agriculture and Markets, to
administer agricultural and dairy marketing
orders
Eliminate the sunset applicable to the waste tire
management and recycling fee

Create a new climate change mitigation and

adaptation account and make changes to the
Local Waterfront Revitalization Program in
support of a $300 million Environmental
Protection Fund

Reduce the authorized reimbursement rate paid

to governmental entities that voluntarily enforce
the provisions of the navigation law

496

Good Government and Ethics Reform

Close the LLC loophole by defining LLCs as

corporations for the purpose of political
donations
Set limits on outside income for members of the
Legislature

Implement campaign finance reform and public

financing of campaigns
Enact comprehensive FOIL reform
Enact Public Officers Law reform
Enhance voter opportunities

Improve transparency and oversight related to

vendors and for-profit businesses
Enact lobbying reform

Pension Forfeiture Concurrent Resolution

Amend the State Constitution to Require Pension

Forfeiture of Public Officials Convicted of a Crime
Related to Public Office

497

498

16. T

HE CITIZENS GUIDE

TO THE EXECUTIVE BUDGET

The Executive Budget process and key budget

document

formats

are

governed

by

the

State

Constitution, with additional details and actions

prescribed by state laws and practices established over
time. The States budget process is governed primarily

by Article VII of the New York State Constitution. Article

VII requires the Governor to submit a budget detailing a

plan of expenditures and an estimate of revenues for

the upcoming fiscal year, bills containing all proposed

appropriations

and

reappropriations,

and

other

legislation needed to implement the Executive Budget.

To fulfill these requirements, this budget

includes materials accessible to the general public

through

the

Budget

Divisions

official

website

(http://www.budget.ny.gov/). This year, the central

volume, Executive Budget Briefing Book is included in

the Governors State of the State Book. It contains the

Budget

Directors

Message,

which

presents

the

Governors fiscal blueprint for FY 2017 and explains the

499

States Financial Plan. It also includes highlights of

major initiatives, and a list of the legislative proposals

needed to implement the proposed budget.

The Five-Year Financial Plan summarizes the

Governors

Executive

Budget

and

describes

the

complete plan of spending and revenues required by

the Constitution.

The Economic and Revenue Outlook volume

explains the specific sources of State revenues and

presents the economic outlook for the nation and the

State.

The Five-Year Capital Program and Financing

Plan highlights major capital initiatives and objectives,

and describes the approach to financing the capital

program.

The website includes links to the mission and

functions of each State agency, descriptions of major

budget actions and tables that summarize the agencys
spending by program and category. Also included is a

Users Guide which provides background information

on State government and the budget process, and

explains how to interpret the agency budget tables. This

portal also includes the budget requests of the
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Legislature and Judiciary, which are submitted without

revision as required by the Constitution.

This year, continuing under Governor Cuomos

Open New York and Open Budget initiatives, substantial

and detailed budget data are available through both
New Yorks Open Budget (http://openbudget.ny.gov/)

and Open Data (https://data.ny.gov/) portals. These

portals open appropriation, budgeting and actuals

spending data to researchers, taxpayers and the public

to add to their field of knowledge, spark innovation and
help improve government.

Two types of legislation are required for budget

enactment. Appropriation bills provide the legal

authorization for all spending from the funds managed
by the State. These bills encompass the recommended

funding for State Operations, Aid to Localities, Capital

Projects, Debt Service and the Legislature and Judiciary.

Other bills amend state law governing programs and

revenues. These Article VII bills, and all Executive

Budget appropriation bills, are available online at the

Budget

Divisions

official

website

(http://www.budget.ny.gov/) or in print from the

Senate and Assembly document rooms located in the

Capitol and the Legislative Office Building.
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The Constitution authorizes the Governor to

amend the Executive Budget within 30 days of

submission, allowing for technical corrections and

revisions based on the latest information. However, to
help achieve timely budgets, the 2007 Budget Reform

Act requires the Executive, to the extent practicable,

submit any necessary amendments within 21 days. Any
amendments are made available on the Budget
Divisions website when submitted to the Legislature.

The legislative review process includes public

hearings on the Governors budget. These hearings are

scheduled by the Senate Finance and Assembly Ways

and Means Committees, which are responsible for

coordinating each houses action on the budget.

The Budget Reform Act mandated the use of

conference committees as part of the legislative budget

process. These committees, which have been used in

various forms in the past, must now be formed early in

the process to facilitate agreement on a budget between

the two houses. The two houses ultimately develop joint
recommendations, amend the Governors proposed bills
to reflect their decisions, and pass the amended bills.

These final bills are available from the legislative

document rooms.

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Except for appropriations for the Legislature and

the Judiciary, appropriations proposed by the Governor

become

law

immediately

when

passed by

the

Legislature. However, all items that have been added by

the Legislature, and all appropriations for the

Legislature and the Judiciary, must be sent to the

Governor for his approval or veto. The Constitution

grants the Governor line item veto power, permitting
the Governor to veto such items selectively, while
approving the remainder of the bill.

Chapter numbers are assigned to bills that

become law. For any bill or item of appropriation that is

vetoed, the Governor provides a veto message to the

Legislature stating his reasons for the veto. Vetoes may

be overridden by a two-thirds vote of each house of the

Legislature, in which case the vetoed item or bill

becomes law despite the Governors objections.

After enactment of the budget, the Legislature is

required to summarize its changes to the Executive

Budget. This summary is presented in the Green Book,

which is available from the Senate and Assembly
document rooms. The Governor is required to revise the

Financial Plan to reflect the Enacted Budget. Like the

original Executive Budget and any amendments, this

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revised plan and subsequent updates are also made

available on the Budget Divisions website.

Note: Readers are encouraged to visit the New York State Budget
Divisions website (http://www.budget.ny.gov/) and the Open
Budget website (http://openbudget.ny.gov/) to access the latest
information and documents related to the Executive Budget proposal
and the Enacted Budget. Virtually all materials are made available
on the website, either on the day of release or within 24 hours.

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