ALBANY – New York's state's $168.3 billion enacted budget reduces transparency and oversight measures, expands "backdoor borrowing" and includes several new lump-sum appropriations, according to a report released Friday by state Comptroller Tom DiNapoli.

While the spending plan addresses federal tax changes and increases the state's investment in education and healthcare, DiNapoli said, the lack of oversight and irresponsible borrowing puts the state at risk.

"I am concerned that the budget expands public authority backdoor borrowing and fails to build up rainy day reserves." DiNapoli said. "While revenues are currently strong, it's important to monitor trends moving forward including the ongoing impact of federal tax and budget actions."

Notably, the budget expands the state's use of lump-sum appropriations. One of the largest of these sums, is a $475 million allocation for the State and Municipal Facilities Program, or SAM, a 23 percent increase from last year, even though the majority of previous appropriations for the program remain unspent, according to the report.

"The need for additional discretionary spending authority was not made clear in the enacted budget," DiNapoli said.

SAM has been used by the state Dormitory Authority to fund pet projects of the Legislature and the governor and for other projects, but the 2018-19 budget expands the list of entities that may benefit from the funds to include nonprofit organizations, sanitation districts, special districts, regional transportation authorities and the New York City Health and Hospitals Corporation.

The budget also authorizes public authorities to borrow $6.5 billion on behalf of the state, a 21.5 percent increase over the executive proposal. The largest borrowing adjustment from the executive proposal is a $398.5 million increase for SAM, according to DiNapoli's analysis.

Fiscal watchdogs have long criticized the use of SAM as a credit card for the state and its lack of accountability to the taxpayers.

"Number one, this money is not being used to fund public priorities. Number two, it's using borrowed money and forcing future taxpayers to pick up the tab for politicians to win political points today," said Ken Girardin, policy analyst at the right-leaning Empire Center for Public Policy.

DiNapoli's report also identifies moves to bypass regulations in the state's procurement process, such as eliminating competitive bidding and independent review of contracts in certain cases.

The budget provides a number of lump-sum appropriations for economic development, but does not include any provisions to improve transparency or accountability related to the spending. Spending projections also reflect the movement of $1.4 billion for the Metropolitan Transportation Authority off-budget.

The report questions why the state has not squirreled away more rainy day funds, since the state ended the fiscal year up $1.7 billion due to strong tax revenues late in the year, unexpected monetary settlements and lower-than-projected spending. DiNapoli called it "a missed opportunity to better prepare for the next economic downturn."

The comptroller acknowledged that the budget was enacted "on time" — or prior to the April 1 deadline — but noted that as usual, most budget bills were rushed to passage with "messages of necessity," leaving little time for review.

Gov. Andrew Cuomo's office did not respond to a request for comment on the comptroller's report.