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Our soon-to-be Governor Cuomo has made reducing the number of governments in New York State one of his signature issues. I agree that 10,521 governments is probably too many for 19.5 million people - that's a government for about every 1850 of us, actually more like a government for every 1060 of us outside of the already way-consolidated New York City.
Unfortunately, the most visible side of Cuomo's program for resolving this is largely (though not entirely) bogus. "Let's dissolve villages! Sure, there will be a study and a referendum, but these layers of government should vanish." Doubtless there are some spendthrift villages out there, and perhaps there are a few that no longer feel like villages. However...
Most of those 10,521 governments aren't what we think of as "government". They aren't counties (62), towns (932), cities (62), villages (556), or school districts (643 + 37 BOCES). That leaves 8,229 "governments"!
Those "governments" are special districts. For example, Tompkins County has 1 county, 1 city, 9 town, 6 village, and 7 school districts in it. Out of 95 governments, 71 are districts of some kind or another, 66 of which are administered by that core of 17 municipal governments. The Town of Dryden has water, sewer, and lighting districts, and a corner in a separate fire district. Five different school districts serve Dryden residents. (If you want to know how all these pieces work, Wikipedia has a great answer.)
The problem isn't that we have too many villages. The problem is that we have lots of overlapping responsibilities that lack clear direction. While my Town Board has great people on it, none of them actually live in any of the sewer, water, or lighting districts that they oversee. The Dryden school district and the Town of Dryden have substantial overlap, but the Dryden schools area is centered further east than the Town. We do have complications created by Town-Village interactions on infrastructure, but in large part those problems are the result of property owners wanting the infrastructure advantages of a village without actually being in one.
So how do we fix this? How do we bring our number of governments down to something more reasonable, improve oversight, and reduce cost?
My answer is consolidation, but a different kind of consolidation. Instead of just getting rid of governments, focus on creating clear lines of responsibility to voters. Re-establishing those connections will have the nice side effect of consolidating many of these "governments" into something more rational.
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