I hear many people describe Colorado as an over-retailed state. While on the surface this appears to be true as we drive down highways and interstates in the metro region and see the same retailers cropping up every few miles (Target, Home Depot, Costco, etc.), the state is, in fact, not comparatively over-retailed compared to the nation when examining employment and number of firms. In 2008, the concentration of Colorado's employment in retail was 3.7% less than the national concentration of retail employment, and the concentration of firms was 10.3% less than the nation's. In addition, the average number of people per establishment was 12.9 in Colorado, versus 14.5 nationally.
Colorado has a disaggregated sales tax structure, where the state takes a share of revenues and the remainder is left to local governments (county, municipal). In the City of Boulder, for instance, the state's share is roughly one-third of the 8.16% sales tax rate, and the remaining two-thirds are for local governments and special districts (state 2.9%, county 0.65%, city 3.41%, RTD 1%, Scientific and Cultural Facilities District 0.1%, and Metropolitan Football Stadium District 0.1%) (http://www.taxview.state.co.us). Given that municipalities like Boulder can receive 42% of the sales tax revenue, there is incentive for cities to court retailers and even participate in real estate development.
Real estate pays dividends and other returns to the community in the form of property taxes, sales taxes, employment, services, etc. Despite cities holding a diversified portfolio of real estate (residential, industrial, retail, office, hotel, etc.), there is inherent risk, as with any investment. In this most recent recession, the exposure is to market risk and company risk (over leveraged, undercapitalized). As markets contract, the city is exposed to decreasing revenues with little additional cash flow to backfill the losses.
Look to Lafayette for an example. The closure of the Albertsons store will lead to as much as $450,000 less in annual tax revenue according to city estimates (Bounds, Lafayette Albertsons closure plans prompt petition drive, 2009). This contributed to the city's proposed closure of the library one day per week, in addition to other cuts. In fact, commercial real estate along South Boulder Road in Lafayette has been vacated by two Albertsons stores, Walmart, McDonald's, Ace Hardware, and others.
Photo by: Cliff Grassmick.
Louisville is in similar straits. Sam's Club announced its departure from the city, leaving a $500,000 hole in the city's general fund and $250,000 hole in the capital projects fund. Banking on a revenue bump from ConocoPhillips, the city is considering $250,000 to $400,000 in budget cuts. (Bounds, Louisville looks at budget cuts to make up for lost Sam's Club revenue, 2010)
In essence, the state's disaggregated sales tax structure has led to disaggregated risk. For years, the benefit of risk has played into the healthy growth of local government's general funds; given the recessions of this decade, the benefits have transformed to burdens of risk. By aggregating sales tax revenues, cities, counties, special districts, and the state are all pooling risk - like a diversified portfolio. This removes the company risk of one large retailer closing (i.e., Sam's Club, Albertsons) and thus spreads that risk across the state.
Revenue sharing is one idea that has been proposed to pool risk in the Boulder-Broomfield corridor. By sharing tax revenues (and expenses) between interconnected municipalities, there is less need for every city to have an elaborate shopping center luring consumers. (see http://www.bouldercounty.org/BOCC/Consortium/RS/index.htm for more information).

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