90-2284 �� � � � � � � � � � Council File � � ��
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�,.� s a a'�...� i c � i� � � Green Sheet : �a a � 9
RESOLU
CITY OF SAINT PAUL, MINNESOTA
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Pr� nted By -r� -I�'
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•torr�d To �� Committee: Date �02 -�7��
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' Program for Capital Improvements
WHEREAS, the City of Saint Paul is required under the 1976
Metropolitan Land Planning Act to produce a Program for Capital
Improvements; and
WHEREAS, the Economic Development Committee of the Planning
Commission has reviewed and revised the 1988-1992 Program for
Capital Impravements, adopted by the City Council as part of the
City's Comprelhensive Plan; and
WHEREAS, the ;Planning Commission released the revised Program for
Capital Imprdvements for public review, and held a public hearing
on the docum�nt on October 5 and October .l9, 1990; and
WHEREAS, the 'Planning Commission has by resolution on November 2,
1990 recommeMded its adoption by the City Council as part of the
City's Compr�hensive Plan;
NOW, THEREFORE, BE IT RESOLVED, that the City Council hereby
adopts the S�int Paul Program for Capital Improvements:
1990-1999 as part of the City's Comprehensive Plan, and for use
in the Unified Capital Improvement Program and Budget Process.
Ye�,ae Nave Absent Requested by Department of:
� � Planning R Economic Develo�ment
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c ee _,,_ --_
e �_ _
i�son "'�`— BY: U
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Adopted by Council: Date ��-. 5 �� Form App ed by City Attorn y
Adopti Certified by Council Secretary By.
BY� �` Appr ve by Mayor for Submission to
AR I I 1991 coun � ,-�
Approved by Mayor: Date / 9� � /
� B e��
By: y�
PUBUSNEO MAR 16'91
� I (�9�-�����
DEPARTM NT/OFFICE/COUNCIL DATE INITIATED N� _ 10 2 2 9
P.E.D. 11�3��90 GREEN SHEET .
CONTACT PERSON 8 PHONE INI TE - INITIAUDATE
DEPARTMENT DIRECTOR �j �CITY COUNCIL
Mark Vander Schaa$ 3� ASSIGN ITYATfORNEY �CITYCLERK
MUST BE ON COUNCIL AGENDA BY(Di4TE) ROUB NGFOR BUDGET DIRECTOR �FI T.SERVICES DIR.
DeC2ITIb2Y. 30�� Z99O' ' ORDER �MAYOR(ORASSISTAN� eggy Reiche i•
TOTAL#OF SIGNATURE P/#GES � � (CUP ALL LOCATIONS FOR SIGNATURE)
ACTION REQUESTED: ,
Adopt 1990-1999 P�ogra� for Capital Improvements and 1992-1996 Capital Allocation _Policy.
� `
RECOMMENDATIONS:Approve(A)or F9eject(R) pERSONAL SERVICE CONTRACTS MUST ANSWER THE FOLLOWING�UESTIONS:
A PLANNING COMMISSION _ CIVIL ERVICE COMMISSION �• Has this person/firm ever worked under a contract for this department?
_CIB COMMITTEE ,_ I YES NO �
i 2. Has this person/firm ever been a city employee?
_STAFF YES NO
_DISTRICT COURT � � 3. Does this person/firm possess a skill not normall
y possessed by any current city employee?
SUPPORTS WHICH COUNCIL OBJECtIVE? ' YES NO
All ', Explafn all yes answers on separate sheet and attech to green sheet
INITIATING PROBLEM,ISSUE,OPPORTUNITY Who,What,When,Where,Why): _
I
. 1976 Metropolitan L�nd Planning Act requires the City .to prepare and update a Program
for Capital Improverhents.
. City Council is res�onsible for providing policy guidance (via the Capital Allocation �
Policy) in the annu�l preparation of the Capital Improvement Budget. '
ADVANTAGES IF APPROVED: j
. Will provide sound guidance to citizens, City departments, the CIB Committee and the
City Council in pre�aring, evaluating and adopting proposals for financing via the
City's capital budg�et. -
- �'�����/��
. b�C 1 � 19gp :
DISADVANTAGES IF APPROVED: ;
None R ���� YO�S����C'� :
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DISADVANTAGES IF NOT APPROVED:
. Lack of sound guidance to citizens, City departments, the CIB Committee and the City
Council in prepari,ng, evaluating and adopting proposals for financing via the City's
capital budget.
Council Re.,�a;ch Cente�
UEc; � G 59�t�
TOTAL AMOUNT OF TRANSACTION,$ COST/REVENUE BUDGETED(CIRCLE ONE) YES NO
FUNDING SOURCE ACTIVITY NUMBER
FINANCIAL INFORMATION:(EXPIAIN) I �J
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Committee Report
Finance, ManagemQnt, and Personnel Committee
February 11, 199�
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3. Administrati e Orders:
D-11049 - Bu get revision in Community Services - Parks and Recreation
fund. (Referred from Council 8/23/90)
It was noted that this is being appealed. Specific directives were give
to Parl�s & Rlec. to clarify in the job specs. whether it is a full-time or
part-ti�me pdsition. The position should be used for 100% housing issues
and no� for ;grant writing and Southeast Asian initiative as well . It
should ;also ,'be a classified position.
D-11060 - Approval to contract temporary services for telephone coverage.
(�eferred from Council 9/6/90)
Specific di�*ective was given that certified part-time city list be used
instead of outside temporary services. Administration is to implement
this directive.
4. Resolution 90-2283 - adopting the 1992-1996 Capital Allocation Policy.
(Referred fi�om Council 12/27/90)
eso u�tion 0-2284 - adopting the 1990-1999 Program or apita
Improv�ement . (Ref�rred from Council 12/27/90)
Approv�ed wi h amendments to the Capital Allocation Policy and Program for
Capital Improvements. Mark Vander Schaaf, PED, is responsible for the
amendments which will be reviewed prior to City Council meeting.
5. Policy isqussion on securing administrative law judges for Civil Service
Commission.
Administrative law judges have never been used for the Civil Service
Corunissior.. Two departments requESted the use of ALJs and both were
denied by �he Council on a 7-0 v�te. The only way ir� which an
administra�ive law judge should be used is by the department coming to
the Council with a reason for the exception and it must come out of the
department�s budget, not contingent reserve. The City Attorney will
prepare a codificat�on on the ways that an ALJ should be used.
6. Policy discussion on compensation and benefit package for non-represented
management personnel .
Resolution brought in by Mayor freezing salaries of administrative non-
represented personnel was referred to Council without recommendation in
order for !Councilmembers to confer with their staff by the third reading.
-2-
��4 c�aZ�'y
� �°�"�'1�,, ��� � CITY OF SAINT PAUL
Y�.`CtTT Ot"Vl� I ��' .
�`'�'° '=r� � PLANNING COMMISSION
�. � ::
�a �^ � ;
=� w`u�imn „ i i �
,.� nu �t u o'_ i �
?,,+ ^_ � James Christenson, Chair
�� � 25 4Vest Fourth Street,Saint Paul,Minnesota 55102
:.r., iss� ' �
':t:�� j �.' ,
)AMES SCHEIBEL ! ' 612-228-32'0
��1AYOR � I � �
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DATE: Oc�aber! 26, 1990
TO: Men�.bersj of the Planning Commission
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FROM: Ecrbnomilc Development Committee
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RE: Re�amm�nded Revisions of the 1990 - 1999 Program for
Ca�ita]� Improvements (PCI)
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This repo�-t r�commends revisions of the 1990 - 1999 Program for
Capital I��ro�ements (PCI) , based on discussions which have
occurred d�sri�g the review of that document, and the 1992 - 1996
Capital A11oc�tion Policy (CAP) .
�
The revisiansjrecommended for the PCI are technical. Policy
issues which �aere raised regarding the PCI have been addressed by
revisions ahi�h are recommended for the CAP (see report re:
"Recommended �tevisions of the 1992 - 1996 Capital Allocation
Policy") . ;
1. Madifi�Cations to Conform to 1991 Recommended Capital Budqet
�
The dr�aft PCI was prepared before the 1991 capital budget
was re�COmmended by the Mayor to the City Council. The
recammlended capital budget for 1991 differs in a few cases
fro� e budget which appeared in the draft PCI. 1991
p�oje ts in the PCI should be modified to conform to the •
reca ended capital budget.
2 . Financ�inq for Warner Road and Shepard Road
,
T2�e d�aft PCI identifies state and federal fund sources for
Wa�rne Road and Shepard Road that are now known to be
unava lable. Although the Department of Public Works
b�l;e es that equivalent funds can be obtained, the
finan ing for these projects has not yet been determined
preci$ely. The PCI should be revised to highlight this
f8c�. �
3 . Polic� Storm Sewer Hookup
The P lice Department has requested that an additional
$20, 0�0 project be added to the PCI for 1995. This
proje�t, a storm sewer hookup project, would require
Capit�l Improvement Bond Financing (see attached August 30,
1990 �letter from William McCutcheon/Richard iffert to Mark
Vande� Schaaf) . This project is part of the City Rain
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Planning �omm'�ssion (PCI)
October 2�, 1 90
Page Two
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Le�der program. The addition of this project to the PCI
wo�ald ot effect years 3 - 5 (1992 - 1994) of the PCI.
Th�ref re, the Police Department request should be granted.
4. Pu�lic Health Center Replacement :
The He 1th Administration Manager has indicated that there
is now significant developer interest in the Public Health
Cehter property at 555 Cedar Street and that, therefore,
the " blic Health Center Replacement" project perhaps
shbuld be revised (see attached October 11, 1990 memo from
Diane olmgren to Mark Vander Schaaf) . The potential
revisi ns would change the project as follows:
1�92 1993 1994 1995
Current ,� $300, 000 $1, 000,000 $6,400, 000
Proposed ' $30b, 000 $1,000 000
, $6,400,000
The poltential changes would be problematic for two rea�ons.
First,� because the project is proposed for Capital
Improv�ement Bond financing, serious overprogramming during
the 19192 - 1994 period would result from moving the project
ahead �a year. In other words, it would not be feasible to
finande this project and other projects which have been
identi;fied as priorities in the draft Program for Capital
Improwements. Second, the Public Health Division differs ;
f�om n�ost other City units involved in capital budgeting,
i� tha�t there is currently no adopted Health Services plan
or poljicy ensuring that the proposed new facility is
appro�}riate, relative to the services it is intended to
suppo�tt. This makes it difficult for the Planning
Commi sion to give it preference over projects which are
suppo ted by adopted plans or policies. Indeed, the
Capit 1 Allocation Policy is now being revised to require
that project be based on an adopted plan or policy in
o�der for it to be included in years 3 - 5 of the PCI (see
pages 7 & 8 of the report re: "Recommended Revisions of the
1992 ± 1996 Capital Allocation Policy") .
�
For t�ese reasons, the Planning Commission should not move
the p o�ect ahead in the PCI, as requested. Instead, a
lette� should be sent to the Health Administration Manager
expla�ning why the PCI has not been modified. The letter
should also explain that this does not preclude the Public
Healt� Division from applying for 1992 - 1994 financing
when �he CIB Committee considers proposals in early 1991,
but t�at it may be difficult under the circumstances for
the C B Committee to recommend a project of such magnitude
�hat �equires Capital Improvement Bond financing. Thus,
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Planning ommi�ssion (PCI)
October 2�, 1990
Page Thre� i
Public ealth staff should immediately begin conversations
witth t e Mayor's Office, Budget Section to explore
alt�ern te financing and phasing options.
� �
A1 hou�h the project dates in the PCI s�ould not be
mo ifi d, a note should be added to the PCI to explain the
ci cum�tances which could cause the Public Health Division
tojreq�est eariier financing for the project.
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cc: Dan Cojrnej o
Peggy 1Reichert
Al; Lovlej oy
Stacy ;Becker
T�mser� Aichinger
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4.•``t' °'; ' CITY OF SAINT PAUL
; ; DEPARTMENT OF POLICE
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, ,. Wm.W.McCutcheon,Chief of Police
���� 100 East Ekventh Street
I Saint Paul,Minnesota SS 101
James Sdfefbe) , 612-291-1111
�Aaror
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Ruqust 30, 199j0
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Mr. Mark Vand�rSchaaf
City Planner �
1.100 City Hall Annex
25 W. 4th Str�et
St. Paul, NIId j 55102
Deat Mr. Vand�rSchaaf:
;
The St. Paul �olice Department has received the 1990-1999 program
f or capital i#nprovements.
The poliCe po�rtion of the PCI is correct as previously requested.
However, we Ihave since these requests were initially forward,
been advised ';of an additional capital improvement project.
Staff inember,� involved in the City Rain Leaders program now
advise us tl�at the Public Safety Building and annex will be
hooked to th� new storm sewer in 1995. Cost for this project is
estimated at! $20,000. Please add $20,000 to the Police PCI
request for 1995.
If you have any questions on this matter, please call me at 292-
3520.
Sincerely, �
William W. M Cutcheon
CHIEF OF POL�CE
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Richard iffqrt, LIEUTENANT
Commander, �ervices Section
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CITY OF SAINT PAUL
INTERDEPARTMENTAL MEMORANDUM
October 11, 1�90
T0: Mark Vander Schaaf
City Pla�ner
FR: Diane Ho�lmgren�
Health Ajdministration Manager
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RE: Public I�ealth Center Replacement
Some new dev�lopments regarding the replacement of the Public
Health Cente�{ and the impact on the Program for Capital
Improvem�nts !need to be brought to your attention.
The draft Prc�gram for Capital Improvements for 1990-1999
identifies r�placement of the Public Health Center under the
category of �pecial Facility Support. This project is budgeted
at $7 . 7 mill�on between 1993 and 1995 ($300,000 in 1993, $1
million in i�94, and $6 .4 million in 1995) .
The Science �Iuseum of Minnesota as well as a number of developers
are currentl� interested in the property at 555 Cedar Street
where the Pul�lic Health Center is located. Due to this interest
by outside p�rties, it may be necessary to shift the financing
for this pro�ect forward to 1992 .
Please c,all �ie at 292-7712 to let me know if this is feasible and
what steps n�ed to be taken to move this project up to 1992 .
Thank you.
c: Kathi Cajirns
Roy Gar�a
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. �91� -���
city of saint �pau�l
planr�g comr�ssion resolution
f�e number.�—
�te November 2, 1�90
i___
WHEREAS, the Pl�nning Commission of the City of Saint Paul is
charged with th� development and biennial review of the Program
for Capital Imp�ovements in accordance with the 1976 Metropolitan
Land Planning A�t; and
WHEREAS, the Pl�nning Commission reviewed and revised the
1988-1992 Program for Capital Improvements as indicated in the
attached copy, xeleased the document for public review and held a
public hearing on the PCI on october 5th and 19th, 1990;
NOW, THEREFORE,; BE IT RESOLVED, that the Planning Commission
hereby adopts �he 1990-1999 Program for Capital Improvements as a
segment of the ;Comprehensive Plan; and
BE IT FURTHER �tESOLVED, that copies of the document be
transmitted tojthe Mayor and City Council of the City of Saint
Paul for revieW and adoption.
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mOVpd ��/ ; TREICHEL
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���d �'�/ VAN HOEF
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in fav�or_ unT S
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� SAINT P�►UL PROGRAM FOR CAPITAL IMPROVEMENTS
1990-1999
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Adopted by the Planning Commission
� Novcmber 2, I990
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� PLANNING DIVISION
DEPAR'TMENT OF PLANNING AND ECONOMIC DEVELOPMENT
� CITY HALL ANNEX
25 WEST �OUR'TH S'TREET
SAINT PAUL, MtNNESOTA 55102
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TABLE OF CONTENTS
� .
INTRODUCTION 1
� o Organi�ation of the PCI 1
o Ma jor Changes in the 1990-1999 PCI Update 2
� o UCIPBP: Thc Unificd Capital Improvement Programming 3
aad Budgeting Process
�' SECTION A: TWE PROGRAM
A.1 PROGRAM G'UIDELINES 7
� A.1.1 Relatipnship Between the Comprehensive Plan 7
" and the PCI
A.1.2 Strategic Goals of the Capital Allocation Policy 7
�� A.1.3 Program Guidclines 8
AJ.4 Other Considerations 9
� A.2 PROGRAM OVERVIEW 11
, A.2.1 Transportation 11
�� A.2.2 Sewers 12
A.2.3 Parks and Open Space 13
A.2.4 Libraries 13
� A.2.5 Housing and Economic Development 14
A.2.6 PolicC 14
A.2.7 Firc and Safety I S
A.2.8 Special Facility Support IS
� A.3 PROGRAM ANALYSIS 17
A.3.1 Capital Systcros and Functions 17
A.3.2 Priority Categories 21
A.3.3 Financing Sources 25
� SECTION B: THE PROJECTS
�� B.1 PROJECT ESTIMATE SHEETS 29
B.1.1 Transportation: Stretts 31
� B.1.2 Transportation: Street Lighting 57
B.1.3 Transportation: Traffic Enginecring ?9
B.1.4 T'ransportation: Bridges 87
B.2 Sewers 99
'� B.3 Parks and Open Space 109
B.4 Libraries 131
B.S Housing and Economic Development 139
� B.6 Police l49
B.7 Fire and Safety 157
B.8 Spccial Facility Support 165
� . .
SECTION C. TECHNICAL APPENDIX
� C.1 TECHNICAL APPENDIX 173
� �y�����
� LIST OF FIGURES
� Figurc 1 Transportation Program Costs p. I1
Figure 2 Transportation Capital Functions as a Percentage of Total p. 12
� 7ransportation Program Costs
Figure 3 Sewer Program Costs P• 12
� Figure 4 Parks and Open Space Program Costs p. 13
Figure S Library Program Costs p. 13
� Figure 6 Housing and Economic Developmcnt Program Costs p. 14
� Figure 7 Police Program Costs p. 14
Figure 8 Firc aad Safety Program Costs p. 15
� Figure 9 Special Facility Support Program Costs p. 1 S
Figure 10 Summary of Capital Functions p. 18
� Figure l l Capital System/Function Cost Compared to Total 1990-1999 p. 19
PCI Cost
� Figure 12 Capital System/Function Cost as a Percentage of T'otal PCI Cost: p. 20
1988-1992 and 1990-1999
�� Figure 13 Summary of Priority Ratings P• 22
Figure 14 Priority Category Cost Compared to Total 1990-1999 PCI Cost p. 23
� Figure l5 Priority Category Cost as a Percentage of Total PCI Cost: p. 24
1988-1992 and 1990-1999
� Figure 16 Summary of Financing Sources D• 26
Figure 17 Financing Source Cost Compared to 'fotal 1990-1999 PCI Cost p. 27
� Figure 18 Financing Sourcc Cost as a Percentage of Total Known PCI Cost: p. 28
1988-1992 and 1990-1999
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� INTRODUCTI N
1"he Saint Paul Program for Capital Improvements (PCI) is a plan for capital investment
� for the ten-year period 1990 through 1999. The PCI is a representation of the City's
capital needs foz this ten•year period, prepared by thc Planning Commission with the
assistance of staff from all City dcpartments. The list is comprehensive, including all
capital needs which are anticipated by City departments for the coming dccade. As such,
� it is not to be equated with the City's adopted capital budgct which allocatcs scarce
resources over a two-year period. Saint Paul's Unified Capital Improvement Budgeting
and Programming Pracess (UCIPBP) will use the PCI as one means of rating the bicnnial
� eapital budget requests.
Thc PCI was prepare� in accordance with the 1976 Metropolitan Land Planning Act. As
� defined by the Act, a capital improvement program is:
An itemized pkogram for a five-year prospective period and any amendments
thereto, subject to at least a biennial review, setting forth the schedule, timing, and
� details of speoific contemplated capital improvemcnts by year, together with their
estimated cost, the need for improvements, and financial sources.
� The 1990-1999 PCI is the fourth update of the City's capital program. It identifies
proposed capital improvements in the funetions of streets, traffic and lighting, bridges,
sewers, parks and optn space, libraries, housing and economic development, police, fire
� and safety, and special facility support.
The PCI is prepared;by the Planning Commission with assistance from all City
departments. It is adopted by the City Council as Part 2 of the Saint Paul Capital
� Allocation Policy. Upon adoption, the PCI also becomes a component of the Saint Paul
� Comprehcnsive Plan.
�
o ORGANIZATION OF THE PCI
� Introduction -- Discusses the role of capital improvement programming in
rclationship to Saint Paul's capital budgeting process.
� Section A: The Program -- Presents various aspects of thc program in its entirety.
A.I: Program Guidelines -- Presents the PCI's policy guidelines which are
� used to classify proposcd capital improvcments according to relative
priority.
A.2: Program Overview -- Contains a summary of the program for each
� capit2�1 system and function.
A.3: Program Analysis -- Outlines the overall program emphasis and expected
�; financing.
Section B: The Projects -- Considers the timing and financing of each individual
� pro ject.
Section C: Technical Appendix -- Provides more detailed financial and project
r� information, including description of the financing for the City's most complex
� projects, and a review of financing sources and their future availability.
� 1
�
o MAJOR CHANGES IN THE 1990 - 1999 PCI UPDATE �
There are several notable changes in this year's update of the Saint Paul Program
for Capital Improvemcnts. These changes implement the rccommendations of a �
joint CIB Committee/Planning Commission task force whose 1988 report considered
ways to strengthen the rolc of the Planning Commission in the capital budgeting
process. �
A. PCI Adopted After the Bud�et is Adopted
In previous years, the order of procedure was: �
l. Capital Allocation Policy
2. Program for Capital Improvements �
3. Adopted Budget
In the current budget cycle, the order is:
1. Capital Allocation Policy �
2. Adopted Budget
3. Program for Capital Improvemonts �
The intent of this change is to tie the PCI more closely to the adopted
budget, thereby improving the ability of the City to coordinate its capital �
program.
B. Ten-Year PCI
In prcvious years, a five-year PCI was adoptcd. Thc current PCI will be a �
tcn•year program. There are two major reasons for incrcasing the lcngth of
the program. First, becausc the PCI is now prepared after the budget is �
adopted, the adopted budget becomes the first two years of the PCI.
Secondly, the Planning Commission is concerned that the PCI closely reflect
expected available financing in the short run, but that departments also
have an opportunity to express their capital needs in the long run. �
Therefore, the Planning Commission is endeavoring to eliminate
overprogramming for years 3 - S of the PCI (especially for capital
improvement bonds and Community Development Block Grants), while �
allowing departments to express their nceds without constraint for years 6 -
10 of the PCI.
C. Capital Functjon Strate�ies Tied to Strategtc Goals �
In the 1990 - 1994 Capital Allocation Policy (CAP), four Strategic Goals for
capital allocation in Saint Paul are identified: �
1. Basic Services: To provide Saint Paul residents and employers with a
basic level of city services. �
2. Neighborhood Management and Housing. To support the careful
management of Saint Paul neighborhoods, each according to its own �
best potential.
3. Business and Jobs: To ensure a supportive environment for businesses
and jobs. �
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4. Fiscal Inlegrity: To help preserve the fiscal integrity of the city's
� operating, debt servicc and capital improvement budgets by engaging
in careful and thorough analysis of each capital improvement
proposal including the long-range impact on opearting costs and
� revenue generation.
The FCI includes "Capital Function Strategies" which explain what typcs of
� proje�ts are proposed for each of eleven capital functions. In the new PCI,
thesc Capital Function Strategies have been revised to address the Strategic
Goals of the most recent CAP -- particularly the first and fourth goals.
Spcci�al emphasis is placcd on refereneing sections of adoptcd City plans or
� policies which define a basic level of service for each capital function.
The second and third Strategic Goals should be emphasized more in thc next
PCL ' They have not been highlighted in this PCI because the City is in the
� midst of revising its Housing Plan and its Economic Dcvelopment Strategy.
After these plans have becn revised and more work has becn done to
implement them, Capital Function Strategies should be fnrther revised to
� indi¢ate how an appropriate collection of capital projects can contribute to
the Strategic Goals of Neighborhood Management and Housing, and Business
and Jobs.
� D. Nam�es of Capital Functlons
This PCI ratains the same eleven capital functions as were used in the
� previous PCI. Howevcr, it ehangcs two of the namcs: ,
I. Housing and Economic Development. This capital function was �
formerly known as "Economic Development and Urban Preservation."
�� , The new name more accurately describes this capital function and
the adopted City plans which define appropriate services for this
function.
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2. Special Facility Support. This capital function was formerly known
� as "Citywide Buildings" The old label was misleading because many
citywide buildings are not included in this capital function.
Specifically, all citywide buildings that rclated to some other capital
function arc made a part of that othcr capital funetion (e.g., eitywidc
� police facilities art part of the Police capital function; park facilities
arc part of the Parks and Open Space capital function, etc.). Thc
new label cmphasizes that this capital funetion is reserved for
projects that are either too specialized or too generalized to fit some
� othcr capital function.
ThC order of listing capital functions has also been changed so that capital
� functions are now listed approaimately in the order of thcir "capital
intensity" (i.e., functions with many expcnsive capital projects are listed
before functions with few, rclatively incxpcnsive capital projects).
�
o UCIPBP: THE UNIFIED CAPITAL IMPROVEMENT PROGRAMMING
� AND BUDGETING PROCESS
A. Overriew of UCIPBP
�, Far many years, the City of Saint Paul has used its Unified Capital
- Improvement Programming and Budgeting Process (UCIPBP) to plan,
program and budget for all capital improvements. At the center of this
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process is the Long-Rangc Capital Improvement Budget Committ�e (CIB �
Committee), an 18-member citizen body which studies and considers the
long•range capital needs of the city. In developing the recommended capital
budget, the CIB Committee considers capital improvement budget requests
from a number of sources: City departmcnts, other governmental agencies
such as the Port Authority or thc School District, and citizen groups such as �'
Parent Teaehcr Associations and District Councils. Aftcr rating the
requcsts, the CIB Committee then submits to the Mayor and the City Council �
a recommended biennial capital improvement budget and an additional
three-year schedule of tentative commitments which identifies the future
financing needs of multi-year projects and ongoing programs. �
B. PCI Contributions to tbe Unified Capltal Improvement ProErimmin� and
Bud�et Process
Thc PCI contributes in many ways to the City's long•range capital �
improvemcnt programming:
1. Improves Planning by Operating Departments �
In ordcr to assemble a departmental capital improvements program, �
individual dcpartments must prepare an inventory of existing capital
facilities as to their structural condition and need for repair,
replacement or expansion.
� 2. Improves Project Coordina�ion �
The PCI provides opportunities for coordination among projccts with �
respect to location, timing and spccifications. Interrelated projects
can bc programmed to occur concurrently, while those projects which
should precede others can be so programmed. This type of �
coordination between implementing departments helps ensure the
efficient eapenditure of limitcd capital funds.
3. Provides Improved Information to District Councils �
The early identification of proposed capital projccts in the PCI
enables citizens to review the priorities of the Planning Commission �
and the operating departments, and to examine specific projects
proposed for their district. Based on this review, citizens can voice
concerns or comments prior to the approval of the PCI. They can
also use the PCI to develop district proposals for related �
improvemcnts in the next capital budget.
4. Implements the Saint Paul Comprehensive Plan �
�
The Planning Commission can use the PCI to ensure that the goals,
objectives and policies of the Comprehensive Plan are reflected in
the City's capital program. 'The Commission can work with the �
operating dcpartments to see that capital projccts identified in the
plan are appropriately programmed. �
��
4 �
� �yo-���
5. Promotes More EjJective Use oJ �lvailable Capital Resources
� The PCI identifies the level of investment needed to maintain and
improve the city's infrastructura It schedules proposed capital
expenditures over a ten-year period according to relative priority.
�' This encourages an early revicw of priorities and hclps ensurc that
essential improvements are provided first.
� 6. Meets the Requirements oj the State's Metropolitan Land Planning Act
(MLPA)
� Thc MLPA requires a listing of capital improvements in
transportation, sewers, parks and open space facilities for a five-year
period.
�
C. How the PCI is Used in the Unified Capital Improvement Bud�etin� aad
� Programmin� Process -
,. The PCI providcs dccision making gu�dance to the cap�tal improvement
budgeting process. It directly effects two steps of thc process: proposal
� identification, and evaluation of proposals by the Planning Commission.
1. Proposal Identi jication
'� Citizcn organizations and agencies may usc the PCI as a guidc to the
� investment intentions of City departments. They may coordinate
their budget proposals with those of the dcpartments, or use the
� information to work out differences as to project need, timing or
characteristics.
� For those departmcnts whose projccts are included in the PCI, budget
proposals will generally conform closely to thc projects listed for
years three and four of the PCI. But because the PCI is compiled
more than sia months before budget proposals are submitted, budget
� proposals may depart from the project estimates in the PCI. This is
permissible because the PCI is a flexible statement of �nvestment
intentions. However, for reasons explained below, close conformance
� to the PCI is rewarded with additional points in the CIB project
ranking process.
2. Evaluation oJ Proposals �
The Planning Commission is responsible for monitoring capital
improvement proposals for conformance with Evaluation Policy E2
� of the 1990-1994 Capital Allocation Policy. This policy reads as
follows:
� In evaluating proposals for capital projects, the following
_ priorities shall be observtd:
� a. First Priority: Projects which closely conform to the
PCI in terms of scope, timing and cost.
b. Second Priority: Projects which are included in the PCI
� � but significantly differ from the PCI in terms of scope,
timing and cost.
� S
�
c. Third Priority: Projects which are not included in the
PCI. �.
The determination of the Planning Commission is conveycd to the
CIB Committea and is included as a component of the CIB ranking �
proCCSS.
D. PCI Process Timeline �
The two-year capitai budget is adopted during odd-numbered years; the PCI
is preparcd and adoptcd during even-numbered years. The timeline for the
PCI is: �
January Planning Division distributcs project submission
instructions to relevant City departments. �
February, March City departments prepare project lists.
April, May Planning Division receives departmcnt project lists, �
assembles the ten-year program, and analyzes the �
spcnding and financing implications of the draft
program. �
.lune City departments review draft PCI.
July Planning Commission's Economic Development �
Committee reviews the draft PCI for conformance with
the Program Guidelines and the City's Comprehensive
Plan. �
August Planning Commission approves the releasc of the draft
PCI for public review and sets a public hearing date. �
The Mayor's Budget Office, City dcpartments, the CIB
Committee, District Councils and interested citizens
have about six weeks to review and comment on the �
draft PCI.
October Planning Commission conducts a public hearing on the �
draft PCI. Draft program may be revised based on
public testimony. Planning Commission adopts PCI and
transmits to Mayor and City Council.
Noverriber City Council adopts the PCI as Part 2 of the Saint Paul �
Capital Allocation Policy and a component of the
City's Comprehensive Plan.
�
�
�
. �
6 ,�
� � J/
C�qB' 01�
�� A.1 PROGRAM.�UIDELINES
Thc 1990-199Q Program for Capital Improvemcnts (PCI) is bascd on the goals and
� objcctives of two major City policy documents •- the Comprehensive Plan and the Capital
Allocation Policy. The Comprehensive Plan identifies the City's key objectives, and
contains components that define more specifically how those objectives are to be fulfilled.
� The Capital Allocat�ion Policy (CAP) works to ensure that capital resources are allocated
' to those activities dbemed essential to the long-term health and vitality of Saint Paul.
Because the City's �apital improvement needs continue to exceed its capital resourccs, the
PCI establishes a set of program guidelines which are used to classify proposed capital
� projects according to relative priority. Thesc guidelines are based on both the
Comprehcnsive Plan and the CAP.
� 'This chapter discusses: 1) Saint Paul's kcy objcctives, as established in the Comprehensivc
Plan; 2) the Strategic Goals of the Capital Allocation Policy; and 3) the guidelines used in
the PCI for programming proposed capital improvement projects.
�
A.1.1 RELATIONSHIP BETWEEN THE COMPREHENSIVE PLAN AND THE PCI
�� The Comprahensive Plan is Saint Paul's official planning document. It providcs a
vision of thc city's future while guiding its response to current issnes and
� opportunities. Bccause Saint Paul is faced with many service needs which surpass
its limited supply of resources, attention must be directed to those activities of
� critical importancc. The PCI, as a compon�nt of the Comprehensive Plan, is one
way in which thc City focuscs those resources on important capital needs. 1"he
Comprehenaive Plan focuses on four objectives essential to the future well-being of
thc City. These key objectives are:
� 1. To maintain city infrastructure.
2. To expand job opportunities.
3. To �xpand housing opportunities.
� 4. To achievc greater energy efficiency.
The PCI concentrates on the first objective -- to maintain city infrastructure. This
infrastructure consists primarily of capital facilities provided and maintained by
�'� the City su�ch as strcets, sewers, parks, and public buildings. However, the PCI also
incorporatCs objcctives relating to private property as well. A number of projects
programmed for PED, for instance, would help to expand job and housing
� opportunities, often in conjunction with private groups working toward the same
goals.
� Thc Comprehensive Plan emphasizes that maintenance of existing capital facilities
� must take �recedence over service expansion. Adhercnce to this approach will
prevent potential health and safety hazards, and ensure that the structural
� integrity af public facilitics is preserved.
� A.1.2 STRATEGIC GOALS OF THE CAPITAL ALLOCATION POLICY
'The 1990-I994 Capital Allocation Policy identifies four strategic goals, three of
� which are_similar to the overall goals of the ovcrall Comprehensive Plan:
1. Basic Services: To provide Saint Paul residents and employers with a
,� basic level of city services.
7
�
2. Net�hborhood Mana�ement and Houstng: To support the careful �,
management of Saint Paul neighborhoods, each according to its own �
best potential.
3. Busiaess and �obs: To ensure a supportive environment for �
businesses and jobs.
4. Ftscal Intearlty: To help preserve the fiscal integrity of the city's ��
operating, debt service and capital improvement budgets by engaging
in careful and thorough analysis of each capital improvemcnt �
proposal including the long-range impact on opearting costs and
revenue generatioa. ,
In thc current PCI, the first and fourth goals are especially emphasized. �
For each of elevtn capital functions there is a "Capital Function Strategy"
which indicates how the listed projects are related to these goals. Special
emphasis is placed on referencing adopted City plans or policies which �
definc a basic level of service for each capital function.
The Program Guidelines for the PCI (in Section A.1.3 below) derive from �
Policy E1 which defines priorities for varying levels of service.
A.1.3 PROGRAM GUIDELINES �
The PCI uses a set of program guidelines to group proposed capital improvements �
into thrcc overall categories of need: Maintain Quality Basic Services, Maintain
Support System, and Expand Services. These categories ar� listed in order of
importance as dctermined by the policy direction of the Comprehensive Plan and
Capital Allocation Policy.
Projects in the first category, Maintain Quality Basic Services, are relatively more �
important than those in the Maintain Support System category. However, all
projects included in the PCI are of value to the city. 1"his programming �
information is taken into considcration during the capital budgeting process.
Funds are appropriated in the Capital Improvement Budget. �
Following is an outline of the program guidelines and their applicability to the (�
various elemcnts of thc capital system:
A. Maintain Quality Basic Services `�
1"his category includes projects which ensure that basic services are
provided at a level that prescrves the public health, safety and general �
wclfare of Saint Paul residents. This level of service is defined in
appropriate components of the Comprehensive Plan, and in the relevant
Capital Function Strategies. �
Within this category there are thrce subcategories:
A1 Prevent Hazardous Conditrons. This subcategory pertains to conditions �
that threaten life, hcalth, or safety. The subcategory includes
projects that prevent or correct life, health or safety. It also includes
projects that prevent or correct hazardous situations and/or critical �
breakdowns, and limit the City's exposure to liability. Most of the ,
capital improvements in this subcatcgory are required to prevent
emergencies.
8 . �
� �o-a��
�
� A2 Systematic Repair/Replace Existing Basic Services. This subcategory
includes projects relating to the systematic repair, rehabilitation or
replaccment of physically deteriorated or functionally obsolete
� facilities. By addressing these needs on a systematic basis, the City
can ensure the strnctural integrity of its capital facilities, prevcnt
potential health and safety hazards, and limit the City's potential
exposure to liability. Projects that increase energy efficiency in
� existing facilities are also included in this catcgory.
A3 Bring Developed Area up to Basic Service Level. Some developed areas
� of the city are not presently served at the basic level. These pockets
; of lower service level have generally been identified in plan
documents. Capital improvements that bring such areas up to a basic
� service level are included in this subcategory. Projects that make an
existing facility handicapped accessible are also includcd in this
category.
� B. Mainxain Support System
Maintaining quality basic services requires an adequate support system or
set of backup facilities, such as administrative offices and facilities for
�' communication, storage, training and education, and repair and
main(enance. Capital improvements in this category should directly support
� the ability of City government to provide services efficiently and
effecKively.
C. Expapd Services
� The last category pertains to the construction of new facilities or additions
to exiisting capital facilities. Such oxpansion of services may be advisable in
� ordcr to support economic development, physical growth, or to respond to a
serious service problem. Duc to the limited availability of funds,
imprnvements of this type are generally of lower importance than those
� which maintain thc eaisting infrastructure. Thcre are three subcategories
within this category:
C1 Expand Ezisting Services in Planned Redevelopment .lrea. Planned
`j redevelopment areas have been identified in the Land Use element of
� the Comprehensive Plan or in action plans such as the Energy Park
Master Plan.
� C2 Provide New Services
� C3 Expand Exis[ing Services in Undeveloped .lrea. This applies to
� projects where land is undeveloped and not fully served by
municipal infrastructure.
�
�
A.1.4 OTHER CONSIDERATIONS
� In addition to the above program guidelines, there are other considerations that
may affect the need and timing for a particular project. Such considerations are
briefly disicussed bolow. Specific projects that are affected by these considerations
�' are discussed in Scetion C, Technica] Appendia. .
� 9
�
A. Project Coordlnstion
Capital improvement programmfng permits several interrclated projects to �
be coordinated as to their timing and specifications. For example, street
and sewer improvemcnts can be scheduled so that the scwcr work is �
completed before the street work begins. This may neccssitate programming
a less important sewer project prior to a much needed street paving project.
B. Unique Factor: AffectinQ Project Justiflcation �
Programming should take into considcration special factors or funding
opportunitics that may affect project aeed or projeet timing/phasing. When �
these types of projects meet identifiable city nceds, they should bc
appropriately programmed to address such needs, or to take advantagc of
availablc funds. �
C. Operating Bud�et Effect
The PCI helps coordinate the Capital Improvement Budget with the City's �
General Fund (operating) Budget by identifying any additional
operating/maintenancc costs that may result from proposed capital projects.
Likewise, any cost savings are noted. This practice helps identify the truc �
public costs of funding a proposed capital improvement.
D. Useful Ltfe
The PCI notes the estimated life ex ectanc of ro osed ca ital ro'ects. �
p Y P P P P J
When other considerations are equal, thosc projects with longer life
expectancies are of greater value than limitcd-term projects. The useful life �
of projects being financed by general obligation or revenue bonds should at
least be equal to the term of such bonds. This information can also be used
to help determine future repair and replacement schedules. ,�
E. Consequences of Deferral/Inactton
The PCI notes the long-range effect of deferral or inaction on future costs �
and services. This information can help determine the advisability of
postponing projects in order to achieve budgetary savings or othor City
service objectives. �
�
�
�
�
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� A.2 PROGRAM'OVERVIEW
� A.2.1 TRANSPORTATION
� The estima�ed costs in 1990 dollars for the Transportation program are
Z364,d70,505 for ten years, or approximately S36 million per year. This program
includes street, street lighting, traffic engineering and bridge improvements.
� FIGURE 1 ' TRANSPORTATION PROGRAM(�OSTS
(m 1990 do1Ln)
� ;.. St�rreets TnfSc B ' TOTAL
Yeu S e� Lght�ng Eng. ndge�
� 1990 Sl�'8,669,095 5850.200 5520,510 5487.000 ,37A,526,805;:
1991 570,676,700 �901,000 5613,800 51,314,000 32�.505,500;;
1992 S�i2,277,500 5895,000 5290�000 54,119,500 �27�382,000`
�� 1993 520,150,000 S1,S35,000 s2S5,000 S.S,706,000 527.646,OOQ':
1994 530,735,500 51,077,000 580,000 51,960,000 �i3,852,50Q.
1995 535,901,500 51,359,000 580,000 �43,470,000 580,810,SOQ
,� 1996 513,051,500 53,147,000 580,000 51,150,000 527,428,300'
` 1997 521,424,500 52,881,000 580,000 52,348,000 526,733,500
1998 5�9,991,500 52.504,500 580,000 51,200,000 ;533,776,OOQ
j 1999 522,311,500 52,965,000 580,000 518,000,000 343,356,500
,,
-: ; ;>;
, ,
� TOT 'S2b4,441,995< 518,11d,70a ,' �2.159,3I0 579,754,500 ..:.:�354.�47n,5�5::
Note: Total for streets is greater than sum of individual years becanse soma of the years for futare
Wainer and Shepard Rosd appropriations have not yet been identified(see pp. 37,4�.
�
Thc Transportation program includes four capital functions--Streets, Street
Lighting, Traffic Engineering, and Bridges. Streets are by far the largest cost
� component of the Transportation systcm, accounting for over 72 percent of all
costs for the 1990-1999 program. Large street projects include Shepard Road (S26
million), the East CBD Bypass (S20 million in�l995), Ayd Mill Road (S1S million in
� 1994), East Como Boulevard (S10 million in 1998), and Warner Road,(59.2 million).
As indicated in Figure 2, Bridges are also anticipated to be a larger eapense in the
`�� fut�re. In the 1990-1999 Transportation program, Bridges account for nearly 22
percent of the estimated costs (in contrast to the 1988-1992 program where they
were less !than 13 percent of estimated future Transportation costs). The largest
bridge prdject is the Wabasha Street Bridge over the Mississippi River (519.5
� million). ' Two other major bridge projects are bridges between Ayd Mill Road
and Interstate 94 (S18 million in 1999), and the replacement of thc Wabasha Street
Bridge over the Mississippi River (517.5 million in 1995).
�
� � � .
� ll
�
�
�
. ' �
FIaURfi 2 TRANSPORTATION CAPTTAL FUNCTIONS
AS A PERCENTAC3E OF �
TOTAL TRANSPORTATION PROCiRAM OOSTS
Prognm Years Str+eeb Iighting TratSc Eng. Bridges �
1990-1999 72.696 S.09fi 0.69i 21.996
(1990-1994) 84.59f 4.096 1.396 10.296 �
1988-1992 81.296 4.096 1.996 12.996
1986-1990 71.096 5.096 2.096 22.096
1984-1988 51.49i 4.5� 4.89G 39.396 :�
�
A.2.2 SEWERS �
The program for Sewers declines �a�3 �
in cost significantly after 1995,
due to the completion of the SEWER
accclerated program to separate PROGRAM QOSTS �
. sanitary and storm sewers. rm 19gp dollan)
Between 1990 and 1995 the Sewers
function will cost approximately Y� �
S22 million anaually. From 1996
through 1999, annual sewer lggp 519,104,000
investments will be from 52.3
million to �4.3 million annually. 1991 521,344,250 �
1992 s22,418�138
1993 s24�902�969
1994 525,9S2,6T9 �
1995 525,651,679
1996 54,269�000
1997 s3,048,000 �
1998 52,283,000
1999 52,683,000
TOT 'SISI,6�6,?IS� �
� �
12 �
� �
���s a1��
� A.2.3 PAR S AND OPEN
SPACE FIGURE 4
` The Parks ptogram calls for pARKS dc OPEN SPACE
558,892,200 Qin 1990 dollars) over pROGRAM COSTS
a ten-year period--for an annual (m 1990 dollars)
� average of S'S.9 million. This
estimate continues the trend of
declining ex�ected capital Y�
� investment in Parks which was
highlighted in the last PCI (in 1990 s9,165,000
1990 dollars. the 1988-1992 PCI 1991 52�819,000
had a five-year program of 1992 55,936,200
� approximataly SS1 million»for an 1993 s9,182,000
annual average of over S10
million). The largest anticipated 1� �����
� Parks expenditure is the 1995 s6,090,000
developmenT of the Lilydale 1996 57,380,000
portion of the Lilydale/Harriet 199? 55,080,000
� Island Regional Park--a project 1998 54,210,000
estimated t� cost S18 miilion by 1999 54,010,000
1999.
;
� TOT '°558,892,20Cf
�
A.2.4 LIB ARIES
� The program for Libraries is FIGURE S
estimating 'ten-year expenditures
of approximately S21 million. The I.�RARY
� largest project is expected to be PROGRAM COSTS
the addition and renovation of the ('m 1990 dollus)
Central Library during 1992-1994,
� a project estimated to eost S16 Y�
million over that three-year
period. 1�
sss�,000
� i�i si,�as,soo
i�2 si,2as,000
i� slo,6o0,000
���� i�a sa,aoo,000
i�s saoo,000
� i� s2,000,000
� i� so
i�s so
i� �
� TOT 521,177,800
� .
�
13
�
A.2.S HOUSING & ECONOMIC �
DEVELOPMENT FICiURE 6
The Housing and Economic HOUSING dc ECONOMIC �
Development capital function DEVELOPMENT
proposes 597,296,700 in capital
budget moneys during the �����S ;�
1990-1999 period. Over 40 percent ('m 1990 dol4rs)
of this money is targeted toward
addressing honsing needs; Year �
approaimately 10 percent is
targeted for economic 1990 s8�417,000
development; most of the balance 1991 s'7,502,400 �
is flexible and can be used for iggZ 57,394�100
both purposes. Significant 1993 57,894,100
increases in capital funds for this
function are proposed for the l� 57,894,100 �
1995-1999 period. This proposal 1995 Si1,S75,000
reflects the convictioa of the 1996 511,655�000
Department of Planning and 1997 511,655,000 �
Economic Development that the 1998 511,655,000
expected available financing for lggg 511,655,000
1990-1994 is inadequate to meet �
the needs addressed by the
proposed programs. T�T 597,296�704'
�
A.2.6 POLICE
FIt3URE 7 ,�
Nearly S3 millioa in capital
eapenditures are proposed for ���
Police facilities during the
- 1990-1999 period. The largest pROGRAM COSTS
proposed project is the ('m 1990 dollus)
replacemcnt of the current radio
system with a tranked system, s Yeu �
project estimated to cost
S2 million in 1994. 1990 s310,000
��� �s,� �
i� si�,6os
i� �
i� s2,000,000 �
i�s uoo,000
i� so .,
i� � �
is9a so
i� �
TOT SZ 968 60S �
. �
�
. �
14
� �'7
C�y���
� A.2.? FIRE AND SAFETY
Capital costa for the Fire and �GURE a
� Safety Services function are
expected to be approaimately 54.9 �g S��
million during 1990-1999. Two PROGRAM COSTS
� major projeats account for most of ('m1990dollus)
this money--a new administration,
classroom and maintenance y�
facility (52.8 million, mostly in
� 1997) and the replacement of Fire �� s16,400
Station �10 (S1.S million, mostly
in 1996). 1991 573,500
� 1992 5135,800
1993 530,000
1994 5304,400
� 1995 5109,200
1996 51,450,000
1997 52,768,000 �
� 1998 SO
1999 SD
� .
TOT �4,887,300,
�
A.2.8 SP CIAL FACILITY
SU�PORT �G�9
� Approximately S17 million in
capital spcnding is proposed for SPECIAL FACII.iTY
� the Special Facility Support SUPPORT
function for 1990-1999. The PROGRAM COSTS
largest expenditure for this ('m 1990 dollan)
� functioa would be the replacement
of the Public Health Center (57.7 Y�
million between 1993 and 1995).
Although the rcplaccment of this
� facility is being programmed, the 1� 5859,172
option of building an addition to 1991 5800,000
the present facility is also being 1942 51,275,000
� considered. The cost of an 1993 51,220�000
addition would be considerably �gg� 51,820.000
less than the cost of a aew 1995 57,220,000
� facility. (Estimated costs for the lyg6 5820,000
addition �re 51.5 million if it were
built between 1992 and 1995.) 1� 51,320�000
i�a ss2o,000
� i� _ sszo,000
T'OT :' 516,974,1'T2�
�
�
15
� D, �
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�� A.3 PROGRAM ANAZYSIS
� The cost of the overall program totals 5718,323,997 (in 1990 dollars) for the tcn year
period 1990-1999. The average annual program is $71,832,400 in 1990 dollars. In contrast,
the approxiraate total v�luc of the 1988-1992 program (in 1990 dollars) was 5381 million
for an annual average of approximately S76 million.
� The decline in the valu�c of the program betwecn 1988-1992 and 1990-1999 is attributable
to two factors. First, there was no limit on overprogramming in 1988-1992. However, for
� 1990-1999 the years 1990-1991 are limited to the adopted budget and the years 1992-1994
are limited by expectcd available financing. Second, even the unconstrained years of
1995-1999 in the ncw PCI are, in effect, limited by the fact that many nccds which will
� appear later in the decadc are not known now. Consequently, the average annual program
for 1995-1999 is only �70.6 million, approximately the same as thc 569.2 million average
for the years 1990-1994.
�
A.3.1 CAPIT.�L SYSTEMS AND FUNCTIONS
� Figures 10 and 11 on pages 18 and 19 detail the composition of the 1990-1999 PCI
by capital system/function.
� .
�
�
�
�
�
�
�
�
�
� 17
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� H � r�".� �H H � N N_ N � Qr �
'�
� y v v a O •� �
�n � g � � � $ � � ° � �'
°; og °oo °oo °o ^ d � � � e� o >,g `�a
.. �D .. vpp� .. e�l ... ��D pppp � .•r .•w ., ., vpp� �
00 `� lC ir�i W H �C � ^ ~ H �pp N � y•V H
�+ y �r rr rr y� H � �H y w '1�/�
8� $. 8. g, �3 .- Q .. .a ;_:
a a a a � .n ° �� � � '� H �
� �
E= E� E� E� � a � x a° w � � -
18 ��
� ��
. ��y�a-��
�
� IGURE 11 ` ;, < < :
CAPITAL �YSTEM J FUNCTION,COST COMPARED`TO
>
7'OTAL'`1990 - 1999 PCI COST `
�
�
' ������
Strat Li6�tu (2S%)
Tnffic F.a6ixui�g g0396j
�
Bridget(11.1%)
�
Poliee(3S4b)
� ,
Searn(21.146) Ho�pnga�d Eco�omie Development(13S4b)
�
' libnries(2.996)
Parts and Ope�Space(8.296)
�
� Capital System/ Percent of
Fanction Cost Total Cost
Transportation ;S36d,470�OS 30 7�b`;
� Sueets $264,441,995 36.8%
Street Lighting 518,114,700 2S°b
Traf�c Engineering 52,159,310 03�
� Brid es S79 754 00 11.1%
Sewers ; 31Si 656 715 �1.1%;:
Parks and O n S ace > �58 892 00 > 8.2%
� ' L�raries ' S21 177 800 29a1b'
' Honsin and Economic Develo ment S97 96 700 13Sqb`:
' Police > S2 968'605 ;> �.4gb
Fire and Safe ,:'S4 887' 00 0.7gb;
� S ecial Facilit Sa rt S16 974172 2 44b':
TOTAL '7 ..:a�..;
�
� -
� 19
�
. Some significant changes in the composition of the PCI between 1988-1992 and �
1990-1999 are evident in the following table:
�
FIGURE 12
CAPITAL SYSTEM/FUNCfION OOST �
AS A PERCENTAGE OF TO'I'AL PCI COSf:
1958- 1992 AND 1990- 1999 �
Gpital System/ 1988- 1990-
Functian 1942 1999 ,
Transporbtian < ;37,096 `;;SO.T
:....:..::.:.... .. .::.......:.:. .....
Stree4 30.196 36.8 96
Street Lighting 1.S 96 2.5 96 �
?raffic Enginoering 0.�96 0.3 96
Bridgea 4.8 96 11.196
Sewers >28.696 ':21:I �
Puks aad Open Spaca 13.496 >::'8.2
I�'bruies ;0.796 ;:>2.9
Housing and Economic Development 16.9 96 !13.5 �
Police 0.3 96 < 0.4
Fire and Safety <l.t 96 0.7 96
Special F�ility Svpport :2.196 '::2.4 �
�
�
The most notable trend is the dramatic increase in Transportation as a component �
of the PCI. In 1988-1992, Transportation accounted for somewhat more than 1/3
of all planned capital expenditures. By 1990•1999 it had come to account for over
half of the PCI. This is attributable in part to the decline ia sewer expenditures �
later in the 1990s when the sewer separation program is completed. At the same
time, the accelerated residential street paving program is proposed to continue
through the year 2005. The increase in Transportation percentages is also �
attributable to the fact that several major street projects are planned for the next �
decade--notably Shepard Road, Warner Road, the East CBD Bypass, East Como
Boulevard, and Ayd Mill Road. Finaliy, it is attributable to a substantial increase
in planned eapenditures for bridges. �
The underlying reason for the increasing emphasis on Transportation was
identified in the 1988-1992 PCI where it was observed that, as aa older city, parts �
of Saint Paul's infrastructure are reaching the age when major repairs and
replacements are needed. The cost of these repairs and replaccments are high.
Reduced maintenance on a day-to-day basis, due to declining operational budgets,
has possibly contributed to the increase in projected capital nccds. Because of �
defcrred maintenance, some projects will reach the end of their life-cycle more -
quickly than anticipated.
�
20
�
�,�90 '���
�
A.3.2 PRIORITY CATEGORIES
� Figures 13 and I4 on pages 22 and 23 detail the composition of the 1990-1999 PCI
by priority Category.
�
�
�
�
�
�
�
�
�
�
�
�
�
�
� .
� 21
�
8ah � :a � � � � `
K � a � � � i .� � � � � ::�
a � N � � :� � � :>�: � � g ' : �
a �, � '� �, � ;� �. n. „ � �
E., a ., i � � i ::� .. �� � .;> ..
O � � N ' :� y I :::H: y f�j ( :;�j.
E"�
� � g � � :;>; � ; .� � $ � i $ �
� � � � � � �' � �
M � i � i .. i .,
i I a�c" I o�o"
H � � � Vl � N9 �
� � 8 � ; $ `.� i 3 :� $ :� i $ :
� :� �
$ �, � i i � i �
e�i �n i I o I o
H � N � � � f�/1 � N
..... � � � i � i � ` � � i � L ,
� r� �n � � o� � � � h m
� ��. ; �, � ; � � ; �
H I � I I �
� t� �
x � � � ig 3 � h � �3 � � �
,.� r,, h � i e� i � i �
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i � i � i � � �
y .-+ O I � I H I y Q,
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.,
.! �. _ :
H!. � �, g � i � � i �, � � `� i � � �
� � � � � ' � ' $ a � ' � �
� � .� �
M,� � � N I y � H O t� i M >L'
H H H H H � u �
�., a ..
w w, � � 8 � ; � �, ; �, � �,5' i � ; �
� O; '" � � � ; ~n � ; � � ; � � �
� �jy H � H I y N � H H I y � �
W �
_'__� r' � g � i � i � �' $ 3 i � �' � �
�r � � � � � � � � ' � � �
Fr � 'r� `'�, � r''• � ry, °� � °� :v
� H M M ' y ( y y ' H � � �
� H H � H � ' � GL
� � � S�' � � � 3� � � � � a8
�,., �n � a�' I t� � I � N � e°v u
a � •.+ t;, � `� v`4i � `� � � y � ,� �
� y y � � � � � � C
~ � � i � B � i � � � � 8 " � ■
� � �
� .� � as � � :: h i � � 8 � � � a
''" � ; °..`„ � i �,h � h e�.... � ,m p4
� � � � � V� � H H � � �
«H N � I y � I I � � �
~ Q �Q Q 'C.�c
� � 25 1 � '-' 25 1 25 �� g � � 1 g Cb
� a � � � � � y ;o � ;� � � � � a �
,� � � � � � � � � � � � � 8 � � W � �
� � � i i ..r >o� C
� N H � N � � C � y � EGO
•°- •°- c, '�'='` E° 3 �
� � � Q:;.><
Q � Q �a � a, �jU � � ° o
Z �
�
���a��
��
F�GURE 14 ! - ' `
� P�tIORITY CATE�OR"Y �COST COMPARED TO>
�'iO�AL`1990 --:1999 PCI:COST ' ' `
�
�
� A2 Sy�ttemstie Repair—Replace(57.946)
�
� A1 Pt+event Haurds(3.896)
Ci F�g�and in Ueveloping Aiea(0.046)
� Q Pravide Neav Servioea(9.196)
� Clg,�nd in Redevelopment Area(1b96)
B Mainiain Suppcm System(0.8%)
� A3 Bring Developed Area Up to Basic(26.7'Xo)
�
� Percent of
riori Cate o Cost Total Cost
A Maintain Qnality Basic Sen►ices :5639,351,i9? ;89 04b:
� Al.Prevent Harardous Conditions S2b�49,200 3.8%
A2.Systematic Repair—Replace 5414,553,595 57.7gb
' A3.Brin Develo d Area U to Basic S191 52 26.7°b
� B.Maintain Su rt tem SS 853 450 0.�96
C.Ezpand Servicxa i 578,972,800..... 1109b::
Cl.Eacpand in Redevelopment Area S11�57,�800 1.6%
� C2.Provide New Services 567,515,000 9.4°k
C3. and in Develo in Area 5100 000 0.0°!0
TOTAL '�;�4<;� �::;�::>:��:�,�;�.;`:
�
� .
� 23
�
The following table summarizes changes in the PCI relative to priority categorics
between 1988-1992 and 1990-1999: �
FIGURE 15
PRIORiTY CATEGORY OOST �
AS A PERCENTAGE OF'POTAL PCI OOST:
1988- 1992 AND 1990- 1999 �
1988- 1990- �
Priority Gtegory 1992 1999
A. Mainhin Quality Basic Seraices 82:�96 <::$S:S
A l. Pravent Haurdous Conditions 14.3 96 : : .3.8%
A2. Systematic Repair-Replsce ZS.S 96 57.7� �
A3. Bring Developed Area Up to Basic 43.696 26.796
B. Maintain S�pport S�►stam < 2:5 96 �.8 �
C. Exp�Servic,es ; 14;$96 11.4%
C 1. Expand in Redevelopment Mea 11.4 96 . 1.6 96
Cl. Pravida New Servicxs 2.8 96 9.4 96 �
C3. Ezpand in Developing Area 0.6% 0.0%
Note: Categones C2 and C3 wen interchanged in the
1990- 1994 Capital Alloca6�Policy. This �
table uses the new cLssification.
Modest change has occurred in the totals for the major categories. The value of �
projects within the "A. Maintain Quality Basic Services" category rosc slightly from
82.7 percent to 88.2 percent between the last PCI and this PCI. Spending in the �
"B. Maintain Support System" category fell from 2.5 percent to 0.8 percent. Planned
spending in the "C. Expand Services" category also declined somewhat from
14.8 perccnt to 11.0 percent. �
Within subcategories, however, there are two notable changes.
First, spending in subcategory A2 (Systematic Repair-Replace Existing Services) ,
has risen sharply from 25.5 percent of the total program in 1988-]992 to
57.7 percent in 1990-1999. Accompanying this shift, there has been a significant
dacline in subcategory A1 (Prevent Hazardous Conditions) from 14.3 percent to �
3.8 percent. Similarly, anticipated spending within subcategory A3 (Bring
Developed Area Up to Basic Scrvice Level) also dcclined sharply--from 43.6 percent
to 26.7 percent of the total program. �
Second, a significant shift has occurred between two of the C catcgories. The
percentage of planned spcnding within C1 (Expand Services in Redevelopment
Area) dropped from 11.4 percent to 1.6 percent. This drop was balanced by an �
increase in tho perccntage of spending within C2 (Provide New Services) from
2.8 percent to 9.4 percent.
�
. �
24 �
�
��=�a�����
� A.3.3 FINAIr1CING SOURCES
Figures 16 and 17 on pages 26 and 27 detail thc composition of the 1990-1999 PCI
� by categories of financing sources.
�
�
�
�
�
�
�
�
�
�
�
�
�
�
� .
� 2S
�
,�,] ba � `� � � a � i� 25ad25 �n � ��pc75, LQ5 �s i ::� �i � � � � �ei :� Q i > Xig i �...� �
� � 5, � �5a ?f
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� � � � �` � �i�ji..;.
� N � i:M N M M N N M N M � � %N� � M � N N N �;� N N �y � :� N N I ::N sw
;:.
� � � � ��� � � � � � � � � � � � � � :.$ � � $ � � $ ; � � � � � � ; � � ' ��
� � � ; o �� � � ° � � � � �p� �t � g � � $ � ' �
�
M N ' y M N � M 1 N � M M t wj+ a I d � I ^�. �
� � � N M � N N � N:N
� � 5� � Si Si � S� Si � � Si 5l �R � Si � 8i8i � � :,
� � � � �$ Si � � � � i � � � � � � � � � � � �
N �$Q I �++ �n �p � SS I Q88 � I �++ N I N I +
I `• �
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� � � g � �� � � � � � a � $ � � � � � � �� � � a � � � �� � x � ; � � ; a �
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�:::;���. M 1 M � ( N N � M 1 � }!/
�
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� N � � � v� � ( e� M I � I I � �
� � i � ��j � � i� ��{' � � � ��p � i . � � � � 8
;::;:`�� w N � N LI N M N Z! � a N N N � � a I �" � ( N
M y M M N N
� V
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� v� O �p �p �/j � P O �O � l� O� 9 � P-.
�..�. fry I • �r .+ N ^ � y � � N N I O� GS � ( � P I P...
.r �r 1�1 y
y N � y M N M y � y y � M M M � M M O � � �+ �
.-�,� E �:
� �. � g � � � � �� � � � � $ � � � � � � �� � �� � � � �� � � � ; $ � .� ; ��
. , ..
-o � � � ; � �y � � � � � � � ; = � � ��p � � � ��p � ��p � � � ��
� � y � � M M � M N � �' �M M � y N 1 M y a ' ~ �: �
R�i
� �t � g �� � � � � � � � � �� � � � � � � � � � � � � � � � �� � � � � � � � "
: � � � � • �� � � � � � � � � � � � �� � � � � � � � .� � �
^ � .. y o . e�i � .. ♦ ., 0p ., � y� � p� �C � �
N � � N N y y M � � N M � M N � y N � � N = � 1�
,:sV} � :?`>
� � � � �� � � � � � �� � �� � � � � � � �� � � � � $ � � � � ; � a3 � a ..,
� 9� Q .. Q o � �e � -• �o � �o � �
.� '� i� I � p�� $ '� 25e� t5 '�', � I �Q 8 � : ��pS � � '�$ �y� � �°- � � � �� �
M M i y N H � y y N M � � � N y M M N y M � M N � M � �
a
� o � � � g � � � � g �� � � � � � � � � � � � g � �y � � � sa � � � ; g � " ; �;�
~�' � � ' � � � � � ~ � � N M � N I � ��p^�p � ' � ��p ' ��p ' �
"' 1 1 I
� M � � M M N � y M N � I � M M N ' y M N ' N ' N
I I I I 1 �
.r '� C p ;::
� 'a-'�D� i�i i � � � � � � � � � � � � � � � i $�- 3 �� � i �,a88 88 i 8 i �
�Q � ; N � N $ g N � g !� e�S I Nf� � � ( � � O O� C O ' O N I N �
O � �p N � O N � � O �y� � N � � �'C �p V� p�
� � N � � y y � y ^ y N ~ ~ N M N � � N W � M � � � M r N � �� � M � y
� �u � � �
� s �'
� � � � � a� �n � g �
a a py �L � � Q �0" 4 uCOW a'' y F
..iG�� ..�i<V� xa� � yv�i � y ���� h� �7�, ���a wUUR. � D� �
�
�
. �
26 � � �
� � �_����
�y
�
� FICtURE 17 ; ;; < ;
FII�fA�TCING`SOURCE COST COMPARED TO
TOTAL>1990 — 1499 PCI'COST . >;
�
�
� t.�:oc�«�.s%�
Local:GO Bood�(2t.S96)
�
'
�
Unlrnawn(14.4%)
� State(22.196)
� Federal(14.996)
�
�
� Percent of
Priori Cate o Cost Total Cost
Local ' �347,428,303 48.496;:!
General Obligation Bonds 5178,426,923 24.8�
� pther 5169 001 23S°b
State ' 3160 704 745 ' ;�2.4%':
Pederal ' S 106 890 900 >149%'
� Unknowa `5103 049 ';14�q6:
TOTAL ?::��`::... ; :<:
�
� '
� 27
�
The following table =ummarizes changes in the PCI relative to financing sourccs
between l988-1992 and 1990-1999: �
FIC3URE 18
FINANCIIIC3 SOURCE COST �
AS A PERCENTAC3E OF TOTAL PCI COST:
i9g8- i�,�rm i�o_ i� �
1988- 1990-
Financing Soarca 1992 1999 �
I.ocal > 50:096 ''<:36:3
_ _...._ _ _
__ .__ ..... _ _
_............... _ .............._.
Ceneral Obligation Boads 28.896 29.096
Other 21.2 56 27.5 96 �
State Cmnts and Aids ;......24.496 :2��1
Federal Grmta aad Aids :Z0.5% ;::i�:�l
;......_
_._.... . _ .. __....
Note: For purposes of comparison, the '�mlmown" �
financing sowces an not couated for the 1990- 1999
PCI in this table. Those aourcec actually account �
for 14.3 percent of tbe total PCI for 1990- 1999.
These figures reveal that the composition of major sources of financing has shifted �
to place significantly more weight on local sources. The local share of the PCI
increascd from 50 percent to 56.5 percent between the 1988-1992 and the 1990•1999
PCI's. At thc same time, both state and federal support dropped. The statc share �
fell from 29.4 percent to 26.1 percent, while the federal share declined from 20.6
percent to 17.4 percent. Within the local category, there was also a notable shift
toward greater reliance on financing sources other than general obligation bonds. �
�
�
�
�
�
�
. �
28 �
� ��-yo-����
� B.1 PROJECT ESTtMATE SHEETS
Following are thc Project Estimate Lists for each capital system or function:
� Transportatibn (the system which includes the capital functions of Streets, Street Lighting,
Traffic Engineering, snd Bridges); Sewers; Parks and Open Spaces; Libraries; Housing and
Economic Development; Police; Fire and Safety; and Special Facility Support. The capital
, funetions are liated ia approximate order of their relative "capital intensity" (as
determined by historic patterns of the use of capital financing). A "capital function
strategy" precedes each Project Estimate List and explains how the particular capital
function fulfills the two fundamental Strategic Goals identified in Saint Paul's Capital
� Allocation Policy, 1990-1994: Basic Services, and Fiscal Intcgrity.
'The Projcct Estimatc Lists represeat the best estimates of future capital spcnding and
' financing that is avaalable at this time. Over the neat ten years, the lists will change in
accordance with the availability of financing, the appearance of unforeseen
circumstances, the discovery of new information, and other variables. 1"he lists will be
� revised every two years to reflect such changes in project status. From time to time, City
departments find a necd to make project revisions before the biennial review of the PCI.
In such cases, the Pl�nning Commission will review the request to determine the need for
revision, and to determine conformance with adopted City plans. The Planning
' Commission will thea make its recommendation for amending the document to the City
Council.
' Each item in the Project Estimate Lists provides a vast amount of information:
A. Cavital Svstem or Function
This line indicates which of the service system components (transportation,
� sewers, parks and open spaces, libraries, housing and economic development,
polica, fire and safety, special facility support) are represented on that page.
The transportation functions are also identified.
� B. Aena,rtment/Division
The compiler of the Project Estimate List is identified here (wh�re a single
� department or division is responsible for a single Projcct Estimate List).
C. Prioritv Cateeorv
This line identifies the classification category for all projects listed on the
' page. 'These categories are described in detail in Section A.1.3.
A1: Maintain Quality Basic Services--Prevent Hazardous Conditions
� A2: Maintain Quality Basic Services--Systematic Rcpair/Replace Existing
Scrvices
A3: Maintain Quality Basic Services--Bring Developed Area Up to Basic
� Level
B: Maintain Support System
C1: Expand Services--Expand Eaisting Service in Planned Redevelopment
Area
' C2: Expand Services--Provide New Services in Developed Area
C3:; Expand Services--Expand Existing Service in Previously Undeveloped
Area
' D. Prpiect
Individual projects are identified and briefly described here.
� •
, 29
�
E. CP District �
This column identifies the Citizen Participation District(s) where the project
is located. Within each priority category, the project lists are sorted by
distrct, so that projects in District 1 are listed before projects in District 2. �
Projects which are citywide (in either location or benefit) are identified as
"66".
F. Ward ,
This column identifies the City Council Ward(s) where the project is located.
Within each priority category, the projcct lists are sorted by distrct, so that
projects in Ward 1 are listed before projects in Ward 2. Projects which are '
citywide (in either location or benefit) are identified as "66".
G. Coordinate ,
This column identifies other projects and agcncies that affect a projects'
specification and timing. The listed project should be coordinated with
these projects/agencies.
H. Financina �
This column identifies the financing sources to be used for each proj�ct
(listed alphabetically). A list of abbreviations for financing sources �
applying to each capital function is provided immediately after the Capital
Function Strategy statement.
I. � �
Estimated project costs are identified for each financing source and for
each of the years 1990 through 1999. Costs are expressed in 1990 dollars.
For each year, a subtotal is provided. Also, total 1990-1999 project costs are �
indicated in the final colmm�.
�
�
,
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, B.1.1 TRANSP RTA ION: STREETS
The capital pro ram f r atreets primarily contains street overlay or reeonstruction
projects. Traffi sign 1 work and street lighting are included when specified.
� The bastc serrlc lev: for Saint Paul strtets is defined in "A Plan for Streets and
Highways" (197 ), on of three components of the City's Transportation Plan. (The other
� two transportat on co ponents dcal with bicycles and mass trsnsi�).
The overall g of S int Paul's Tranaportation Plan is to provide for adequate,
, convtnient mo ility i transporting goods and people, while conserving energy and
protecting the nviro men� The basic atrstegy for accomplishing this goal is to use
existing atreets and 'ghwaya as effectively aa possible, miaimizing new roadway
construction a d put ing greater emphasis oa tranait and paratransit.
' The City relie on a tandard functional classification of atreets as principal arterials,
intermediate a teria , minor azterials (A dt B), collectors and loeal streeta. Design
� standards are stabli hed on a system basis, i.e., trunk highways are subject to atandards
aet by the Min esot Department of Transportation and atreets on the atate aid system are
aubject to stat aid andards. Most of the remaining streeta are residential. `The standard
� residential str et wi th is 32 feet, although this width is modified by available
right•of-way, he p icy for trees, and other physical features.
Three princip 1 crit ria are used to determine if a street is fuactioning well:
� I. Does t e roa way adequately handle the volume of traffic expected to use it?
� 2. How es th traffic flow affect adjacent land uses?
3. How oes t "streetscape" look? Is it a pleasant place to walk or drive?
! Because of a strate ic emphasis on the beauty of the sireetscape, trees are also aa �
important co pon t of City street work. Funds f`or boulevard tree planting may be
included in rojec proposats, both for reconstructioa projects snd for overl�y projects. .
� Parkway pr 'ects re included under this capital funetion, although they art also
governed by the p inciples stated in Section B.3.
� The atreet p ogra contributes to the City's ftscal inte�rity by making maximum uu of
the existing street system, providing adequate maintenance and making minor changes.
New routes re to be added when necessary and with as little disruption aa possible. In
, practice, m st Cit street work currently occurs in four situstions:
I. Stro t reco struction in conjunction with federal, state and county road proje�ts.
� 2. Stre t rec struction in con junction with the City's ten-year sewer separation
pro am.
' 3. Stre t reh bilitation (ovtrlay) resvlting from the Department of Public Works'
stre t con ition analysis system. Thia system iavolves the monitoring of arterial
' stre ts on a two-year cycle and the scheduling of rehabilitation before complete
, stre t fai re occurs. This saves money for the City because rehabilitation is much
less expe sive than total reconstruetion.
� 4. Wa ner a d Shepard Roads.
� 31
�
Fiasactog Abbre�iattoos for 5treet�
AST Asaetsments _ �
CA County Aid ��
CIB Capital Iwprovement Boads �
GRRG Grest River Road Grant �
MNDOT Mimaesota Department of Traaaportstion
MSA Municipsi Stste Aid �
PIA Public Improvement Aid � �
SAB Special Asseaament Bonds
SSFR Sewer Service Fund Reserve ,
TIF Tax Increment Financing
? (Source of Financing is Curreatly Uaknown) �
?? (5ource g�Timing of Financing Are Currently Uaknown) �
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' 35
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� B.1.2 TRANS R TI N: R LIGHTING
The qtpital pro am or ttreet lighting ia comprised of iadividual lighting projects and
�; citywide street ighti g improvement programs.`
The basic servi e le� for Saiat Paul �treet lighta ia dtfined'ia the "Saint Paul Street '
Lighting Polic (19S ).
�i .
Stand�rd atree li�h g systems consiat of higMpressure a�dium fixturea, spaced to meet
.,_ tb� Public Wor s D� artment lighting standards for iraffic �fety (basad: on the atandards
� of the Nationa Illu inating Engineering Society). For rtaaoaa of sesthetics, Single
Redesigned La tera yatems art stand�rd throughout most of Ssint PauL Bent Straw
fixtuns are d fined as atandard in the dowatown/riverfront srea, snd oa expreaawsys
and atreeta mo e thi SO feet wide. Above•=tandard lighting systcros may be iaatalled if
the r�q�eating pro ow►nen are willing to pay t6e extra costs to iastall and oparate
these aysteans.
The stredt lig ting rogram contributea to the City's ilscst imte�rity in that lightiag
systems are n rmall installed in c4njunetion with street paving projeeta (and t�us,
� normally in c njun tion with aew►er separation). Such coordination reduets costs
:� significantly nd nimizea th� diaruptian associated with the project. If n�eded for
safety purpos , les expensiva "wood pole" lighting may be installad ia n�eded areas on a
temporary ba is. E ergy effic;ent fixtures are nsed fos all aew projecta, and to preservc
� or improve t e qua ity of exiating infrastructure.
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� B.1.3 TRANSg RT ION: TRAFFIC ENGiNEERING
The capital pro ram r tra[fie engineering iaclndes projects such as traffic signals,
� traffic channeli tion and atreet signagc. The program includes fiaancing for projects
that are created tbrou h tbe traffic engineering :ectioa, and also for projects that are
done by other s cncie where the City is required to participate in the costs. When
� traffic engineer ng w rk is r�quired as part of a atreet reconatruction or sewer project,
the fiaancing is norm lly included with the largar project.
7'he 6a�ic arvic leve for Saint Paul traffic �ngineering projects is defined by the
� Minnesota Man sl oa niform Traffic Control Devices. Baaed on thia manual, thc
Department of ublic Works impiements projects to htlp improve the aafe and efficient
movemont of estri n and vebicular traffic throngh the city, and to maintain the
� integrity of the existi g traffic control aystems.
The traffic eng neeri g program contributes to the City's fisc�l iate�rity in that
� appropriate trs fic e ineering projecb can eatend the life of other components of the
City's infrastru ture.
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Finsnci�� Ab�revtstiou fsr Tr*tilc Ea�ineeria�
AST As�sments �
CA County Aid
IB i al Im rov ment �
C Cspt p e Bonds
MNDOT Minne.�ota Department of ?ransport�tion �
MSA Municipsl State Aid
PIA Public Improvement Aid �'
T'H Trnnk Highway (Mianesota Dtpartmeat of Transportation)
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� B.1.4 TRAN POR ATION: BRYDGES
Tbe eapital ogra for bridgea incIudes replacement and rehabilitation projects for
� bridges in th city hich require such proje�ets. The Public iYorks Bridge Bureau is
responsible f r ins ctiag snd maintaining approximately 300 bridgea in Saint Paul to
protect the s fety nd welfare of the traveling public. In addition, the Bridge Bureau is
responsible f r ins cting and maintaining aIl retaining walts, fencea, �tairwaya and guard
� rails in the ity'a reet right-of-way. The primary goal of the Bridge Bureau is to
eliminate all atruct rsl and geometric deficiencies in bridges s�td structures in Ssint Paul,
whether the be C ty, State, Railroad, or privately owaed. The Bridge Bureau designs
j� new bridges ad w rks with relevant agencies and ownen to coordinate maintenance and
i r�constructi s tf rts.
The basic se �ice 1 rel for Saint Paul bridges is established by atate and faderal
� regutations.
Minnesota st te ls requires all municipalities to inapect and rate alt public brid�cs
� anaually. ? e Bri ge Bureau staff inspects and prepares a Bridge Inspectiaa Report and
a Minnesota Depa tment of Transportation (MnDOT) Structure Inventory Sheet for-each
bridge in th city. These reports are submitted to ihe MnDOT Bridge Engineer for
� MnDOTa in ento and to determine the sufficiency rating. T'he aufficiency rating is a
number fro 0 to 100 which is based +�n a formula ineorpo�ating the strncture conditions,
deck geome y, u erclearances, safe load capacity, and approach alignment. This rating
is used to p ioriti s bridges in the state for Federal Bridge Replacement and
� Rchabilitati n Fu ds. A bridge with a rating undes SO ia eligible for r�placement fuads
and a bridg with a rating uader 80 is eligible for rehabilitation funds. A requirement of
the use of t ese f nds is that the project rid the bridge of all structural and geometric
� deficiencies The annual allotment of federal fu�rds is limited ao that evea though a
bridge is el' ible or funding it may not receive funding allocstion for aeveral years.
� The bridge rogr m contributea to tl�e City's i[�c�l istegrity in that the timel�r rEpair or
replacemen of b dges can extend the lifa of other componenta of the City'a
infrastruct ra (I a bridge must be closed, traffic'must be rerouted onto streeta which
wcre not in ende to receive auch traffic.)
�
�
� �
�
� �
�
�
� 87
• • �; �
Fl�aatia= Abbreslstioas fer Sri+�`es • .
CA Coonty Aid �
CIB CapiUtl Improvemcnt Bc►nds
FB .Fed�ra;l Brid e tad Railroad,Bonda . �
�
MNDt)T MiQnatots Depirtment of TnnspQrtation �
MSA Muaictpal Stata Aid
PIA Public improvcment Aid �
? (Soarae of Financiag is Curreatly Uaknown)
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� ?he p�piril ogra for �ewers includes aaaitary �ewrcr, storm seaer and pondiag projects.
� The ba:ic ser ice 1 el for Saint Paul aewers is defiaed in the City's "Comprehensive
Sewer Plan" art I Stormwater Management PIaa-1984; Part II: Ssnitary Sewer
�lan--I98S), nd in a detailed ameadmeat ta the Stormwatet Management Plaa (1986).
� Alao a new S ll rea P}aa [Highwood] addrease= important sewer iasuea.
Baaed on th pls �, there are tbrae ma jor service-level ob�tives relatin� to seaer
projecta in int ul:
` � 1. To m iatai and replace componenta of the existing aewer ayatem, tberb e�aaurin
reliab e �er ice.
Y S
' To fu fill t ia objective, thc Sewer Division operates a compre.l��naive se�►er
inape ion ogram invalving walk-through inapectiona of larse sewera, and
tele�►i ion i spections of amall sewers. Minor problema found dnring theae
� � inspe ions re handled by City �rews while major problems are developed as
proje s an put out to contract.
� 2. To se arate aanitary and storm sewers, tberaby meeting =tate and €�deral wster
quali req iremeata for the Miuiss�ppi River.
The ity ia urrently in the midst of an accelersted ten-yesr program for :ew,er �
� aepar tion, cheduled for completion in J995. The ten•year project�list for this
progr m is ontained in the 1986 amendment to tho City'a Stormwater Managem�nt
Plan. This roject list reflects tho objectivea of aehieving maximum impact in a
� mini um a ount of time, aad af eaordiaating sewer se�paration with other
const uctio projects.
�• 3. To pr vide ew uwer serviee to developing areas af ihe eity.
This bject ve applies primarily to the Highwood s�rea of the city. A recent Small
� Arca lan r this neighborhood details p�laces where sewer projects are most
need . T 's plan ia currently being considered by the Planning Commission and
will ventu lly be presented to the City Council for adoption.
� The sewer p ogra contributts to the City's ilscai tate�rity through a cotreerted e�fort to
reduce the st of ewer aervice in Saint Paul. Aa importaat component of this etfort is a
rectntly-im emea ed program to determine the nnmerous ac�urces of extraneous flaws into
� the City's aa itar sewer aystem, Theu au�face and graundwater flowa cat�se aewas
capacity pr lcros and excessive treatment chargea ta the City from tbe Region�l
Wastewater reat ent Facility. Pro,jecta are being recommtnded to reducc or elimiaste
' these flowa
� :
s
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r ,
r � _
: � �.
Fi�aacis; A�6rerfatioNS'for Sewers
AST Asu�s�AEs �
C�B Capitsl Improvemtnt �onds � �
FWZ'G : Fedenl Wiata�vster Trcratment Grant�
- IvII+TDQT Minnaota Department of Tnnsportstion' �
MWPCC� Miane�ota �1►atar Pollation Control Ciraaat�
PIA T�btic tmprovement Aid �
_ SAB Special Asseumeat Bonda �
SAF Summary Abatement Fnad
SSF Sewer Service Fuad . �
WU Water Utility - '
_ - . �
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1�7
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' B.3 PARK AND OPEN SPACES
Thc capital pr gram for parks and open spaces includes parks, playground recreation
� center, capital main cnance, and tree planting. Parkway projects are guided by principles
which apply t park and open spaces, although they arc catcgorized under the "Streets"
capital functi n (se Section B.l.l).
, The basic servi ce Ie 1 for Saint Paul parks and open spaces is addresscd in "A Plan for
Parks and Re eatio " (1985). This plan states that, as rtsources become available, the
City will purs e the foliowing development priorities:
� o Region 1 Par s
- enov tion of Como Park, Zoo and Conservatory
�
- ivcr ront parks
, - rails in rcgional parks
o City-wi e Re reation
' - enov tion of Como Pool
, - dditi nal municipal athletic bailfields
- enov tion of Highland Park (not emphasized in the 1985 plan, but
ubseq ently added as a priority)
' o Neighb rhoo Recreation and Open Space
� - ecre tion facilities as required to implement the three-tier system
- here feasiblc, acquisition of passive park land to fill critical gaps
' This plan also addre ses ways in which the program for parks and recreation contributes
to thc City's f scal i tegrity. Three general policy themes are presented which are
relevant to th fisca dimensions of capital budgeting:
' 1. Additi al la d or facilities will be acquired and/or built only if it can be
demons rated that a significant need exists which cannot be met by other city,
' school, r pri ate facilities.
2. Acquisi ion, onstruction or renovation of.facilitics should only be undertaken
' when t e co mitment of funding needed for programming and maintenance
operati ns is vailable.
3. Efforts to ma e efticient use of aU existing resources should be continued.
� Due to an em asis n maintenance and enhancement of the existing system, new projects
are not being chedu ed to use local dollars unless therc is a demonstrated community
' need.
'
� 109
' '
Finaacin� Abbreristions !or Tarks tnd Open Spares
CDBG Community Developme�nt Btock Grants '
CIB Capital Improvement Bonds �
MET Mctropolitan Council � •
PIA Public Improvement Aid �
PV'T Private
'TIF Tax Increment Financing '
UW United Way '
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129
� ��q����y
� B.4 LIBR RIE
The capital rogra for libraries includes projects to rehabilitate and renovate the
� buildinga in aint aul's library system.
� . .
,� The basic :e vice 1 vel for Saint Paul libraries is defined in "A Plan for Libraries" (1984).
� This plan de ines wo features of a basic level of library service which relate to capital
budgeting. owev r, the plan recommends that the basic level of services be financed
primarily by tbe 'ty's annual General Fund Budget allocation:
��
1. A str ng C nttal Library and four area tibraries (Highland Park; Lexington,
Hayd n He ghts, Sun Ray) which serve as the core of the library system.
� 2. Basic ma�,n nance of library facilities. This may include major repairs of those
build ngs i wfiich libraries are expectcd to remain for the foreseeable futura
� A second set of fe tures is provided to define activities which will substantially enhance
and improv the q ality of library service dclivcred in Saint Paul. This set includes the
following it ms w ich are relevant to the capital budget:
� w ' 'n lle in coordination with
� 1. An a toma ed c�rculat�on system h�ch has been � sta d
regio -wid implementation Qf the Metropotitan Library Strvice Agency (MELSA)
� libra ies.
2. Reha ilitat on and renovation of existing library facilities.
� The capital rogr m for libraries contributes to the City's liscat inte�rity by addressing
rchab�litati n and renovation needs before they become so serious as to require n�w
construction
,��
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131
'�
Financing Abbreviatioas for Libnries , `
CDBG Community Development Block Grants �
CIB Capital Improvement Bonds
SB Special Bonds
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�
��9����'�
�,
B.S HOU ING AND ECONOMIC DEVELOPMEN
� The capitsl rogra for housing and economic deveio�ment includes housing activities�
consisting o, reha ilitation incentives, construetion subsidies, �rtnerships to improve
hovsing con itions and homestead assistance. Econonnic development activities in this
progre� iAC) d� i frastructure improvements in commercial areas, financing programs
- and rehabili tion ncentives. The overall program also includes thz Urban Revitalization
� A�tion Progr m w ich focuses on blight removal and redevelopment in areas af th� city
which most ecd r vitalization.
� 7wo plans d ine t e 6asic :ervice level for Saint Pau!'s housing and economic
development apita functions: "A Plan for Housing" (�980) and the "Eeonomic
Devclopment Strat y" (1980). Both plans are currently being updated. �The new
"Economic D velop ent Strategy" was adopted by the City Council in July, 1990. Thc
� ncw "Saint P ul Ho sing Policy for tht 1990s" was adopted by the Planning Commission
in Septcmber, 1990.
,� 1"he new hou 'ng pl n recommends the following actions which cauld require financial
resources t'ro Sain Paul's eapital budget:
� 1. Progra mea ures to expand home ownership and support owncr occupancy.
2. Efforts to su port improved rental property titanagement.
� 3. Creativ reus of obsolete structures and clearance where appropriate.
4. Forms f assi tance that inerease the ability of households to secure adequatc
� housing in th private marl�t.
5. Interim uses r vacant land.
� The new econo ic p n recommends the foltowing �etions which could require financia!
resources frorn Saint Paul's capital budget:
� I. Financi g me hanisms for the redevelopment of areas targeted through the land
use plan
� 2. Support or n 'ghborhood-based development sgancies and partnerships with those
agencies to ca y out development.
� 3. Incorpor tion f design, aesthetic and environmental considerations into
commerc al an industrial development to ensure compatibility with residential
neighbor oods.
� 4. Continua ion a d strengthening of downtown urban design efforts.
S. Investme t in nblic infrastructure necassary to fulfill thc objectives of the plan
� for Saint Paul' riverf'ront.
6. Instal[ati n of ublic improvements in the downtown to enhance and economically
� reinforce cxisti g investment.
The capital prog am f r housing and economic development contributes to the City's
fisc$t iate�rlty b stre gthening the housing and commercial stock that forms most of the
� City's property t x bas .
� 139
• ;�
Financing Abbrevjations for Housing and Economic Development
AST Asscssments �
CDBG Community Development Block Grants �
CIB Capital Improvement Bonds
COE Corc of Engineers �
HRA Housing and Redevelopment Aathority
PIA Public Im rovement Aid �
P
PTF Parking and Transit Fund
�.
TIF Tax Increment Financing
UDAGRF Urban Development Action Grant Revolving Fund ��
URAP Urban Revitalization Action Program
�
'�
�
�
'�
�
�
�
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�
140 �
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�
� � �9e-�2�%
� B.6 POL CE
� The capital rogr m for police services is derived from the Saint Paul Police Department's
internal ten year lan for capital improvements. The program is centered on improving
and maintai ing i s present buiidings, on purchasing the department's third team site, and
on upgradin dep rtmental communications equipment and expanding its canine facilities.
� The ro os 1 to rchase the third team site stems fro� the fact that the rescnt lease for
P P P P
this site wil expi e sometime batween 1995 and 2000.
_ � 'The propos 1 to r place the police radio communications system is necessitated by the
prohibitive ost t maintain present equipment and the increasingly inadequate radio
� frequencies that re part of the present systcm. Inadequate radio frequencies result in
increased a cess t me (thc time an officer must wait to communicate a rnessage) and thus
create a pot ntiai y dangerous sitnation during emergency radio communication
exchanges.
� The propos 1 to e pand the canine facility is a result of expanding the canine unit from
10 officers nd d gs to 21 of each, and a strong commitment to maintain a 24-hour force
� with citywi e co rage. The ability of the canine unit would be enhanced by expanding
its training nd h using center.
� There is cu rentl no adopted City plan or policy that defines the basic level of police
scrvices rel tive t capital budgeting.
�
� .
�
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� 149
� �
Financin� Abbre�istions for Police
CIB Capital Improvement Bonds �
HRA Housing and Redevelopment Authority �
? (Financing Souree Currently Unknown)
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� 55
1
_ ��'�a��
�
� B.7 FIR AND SAFETY
The capital progr m for fire services consists of building renovation and construction
� projects.
The basic s rvice evel for fire services is defined in "A Plan tor Fire Services" '(1976).
?his plan w s rec ntly updated as the "Plan for Fire and Emergcncy Medical Scrvices"
� which was ecom ended by the Fire Plan Evalution Committee to thc Planning
Commission in Ja uary, 1990. The Planning Commission adopted the new plan in June,
1990. As o Nov ber, 1990, this plan was not yet adopted by the City Council.
� The new pl n ma es the following recommendations relative to capital needs:
� l. Con uct a ost and feasibility study of constructing a new administrative facility,
incl ding ffices, training cenfer and building maintenance division, in time for
sub ission for the 1992-1993 capital improvement budget.
� 2. Bud et fo the following improvemtnts:
a. Re ovate Station 20 (2179 Universjty Avenue) with a new addition on the
� we side of the building and instaliation of two overhead doors on the
nor h side of the building to allow fire apparatus to enter from that side.
b. Ins all a new roof on Station 6 (33 Concord).
� c. Re ovate thc trainin tower durin the next five ears.
S 8 Y
� d. Ins all ventilation equipment for apparatus exhausts in the stations which
nee them.
� e. Eq ip station apparatus bay doors with door olosing pre-emption devices
wh ch would reverse their travel should a vehicie or person enter the
do rway as the door is ctosing.
� f. Ad pt sleeping and restroom facilities in all stations to accommodate female
fir fighters.
� g. Ins all monitoring devices on underground fuel tanks.
3. Dev lop a incremental five-year capital improvement plan to begin with the
� 199 -1993 CIB planning proccss.
The capita prog am for fire serviccs contributes to the City's fiscal inte�rity by
� addressing rehab litation and renovation needs before they become so serious as to require
new constr ction and by proposing new construction only whe� it is absolutely necessary.
�
r
�
� �5,
�
Financin� Abbrer;stians !or Fire and Safety Serrices
CIB Capital Improvement Bonds �
�
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_. . _
� �',�e��.z��
B.$ SPE AL CILITY SUPPQRT
� „
The capital rc�gra for "Special Facility Support co�sists of 'two types of projects:
� 1. Proje ts t are too specialized to fit into oae of the �th�r ca,pital fuactions.
�aa les o this iaclude the ramodGling of City Hali, and the rebu�lding of the
Publi �Iea h Canter.
_� 2. Proje ts t are too general to fit into oae of the other �apital functions. An
exain le;of this type i� the Capital Maintenance Progr��a ad�ainistered by the
I�cpa tmen of Cammvui�ty Services--a progra�q applying potentia}ly to a �ariety of
� • capit 'i fun tions;w�tl�in the city.
There is cu entl.y no �dopted City plan or p�ticy that dcfin�s the ba�ic level �f services
� for this cap tal f ction.
�
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�• 165
�
Finaacin� Abbreviatio�s far Special Facil[ty Support
CDBG Community Development Block Grants �
CHAF City Hall Annex Fund
CIB Capital Improvement Bonds .�
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� 17 1
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� C. TECHNICAL APPENDIX: FINANCING OF CAPITAL INVESTMENTS
Prior to City Council adoption of the PCI, a Technical Appendix will be provided.
, The Technical Appendix will provide an analysis of the financing of Saint Paul capital
investments from two perspectives. First, an analysis will be provided of the financing
' packages that have evolved for the City's two largest and most complex current capital
investments: the Shepard/Warner Road Project, and the Combined Sewer Separation
Program. Secondly, there will be a description of the major financing sources used by the
City for a variety of projects. Both sections will contain an assessment of the future
' reliability of the financing.
The Technical Appendix wili also contain an alphabetical index of projects.
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