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279730 WH17E - C�TV CLERK COU�IC11 ��{� PINK - FINANCE G I TY OF SA I NT PAU L CANqRV - DEPARTMENT BLUE - MAVOR File NO. �- Council Resolution Presented By , Referred To Committee: Date Out of Committee By Date WHEREAS, a municipality may, pursuant to Minn. Stat. 462.353 carry on comprehensive municipal planning activities for guiding the future development and improvement of the municipality; and t�JHEREAS, the Council of the City of Saint Paul , pursuant to Minn. Stat. 462.355, subd. 3, adopted on October 1 , 1981 , the 1982-1986 Program for Capital Improvements as part of the City's Comprehensive Plan ; and WHEREAS, the Capital Improvement Program Subcommittee of the Planning Commission of the City of Saint Paul has reviewed and revised the 1982-1986 Program; and I�JHEREAS, a public hearing was held on December 3, 1982, at which the Planning Commission considered the proposed 1984-1988 Program for Capital Improvements ; l�IHEREAS, prior to said hearing, a notice of time and place and purpose of the hearing was published in the official newspaper of the municipality at least ten days prior to December 3, 1982; and WHEREAS, the Planning Commission has recommended adoption of the 1984-1988 Program for Capital Improvements as a part of the City's Comprehensive Plan per Planning Commission Resolution No. g2-47 adopted December 17, 1982; RESOLVED, that the Council of the City of Saint Paul does hereby adopt the 1984-1988 Program for Capital Improvements as part of the City's Comprehensive Plan, a copy of which is attached hereto and incorporated therein by reference, and directs its dist�ibution to the Neighborhood Contact List, the Long-Range Capital Improvement Budget Committee, the Saint Paul Planning Commission and appropriate city staffpersons. COUfVCILMEN Request d by Department of: Yeas Nays � Fletcher _ �°'�"e��IPy [n Favor Masanz Nicosia Scheibel _ __ Against BY Tedesco Wilson JRN 2 0 ��3 Form Appr ved by City Attorney Adopted by C ouncil: Date Certified P s e }�y Counc' . re BY By '�u!" � � �A� 2 � qpproved by Mayor for Submissio to Council �.1pp by ;Vlavor: — _ By PUBLISHED J A N � q 1983 ,:�� ' ', �': : CY't`�Z' OF S.EI.INT ��UL � ��!' 7 � �S i,� �..,- '� c !1` ', 0�.��`ICI� OI;` '1'FfT�� CI'1'� COUI�CIX. t�-: � �,,r !.'` �. Y:��'�� L'^ �' � �,�:,�,►.�_ �� D d t e . January I3, 1983 � �'---- ._ _� . ; �y"3�}S' � Ca �1i�11 (T [ cE �? � POr� f= . TO = Sain� PaU ! Cifi� Councii "- F R o n� = Ci O C�l�I!�� O Cl pINANCE, A1�INAGF.h1ENT F� PERSO,I�EL C N A 1 R James Scheibel 1_ Approval of minutes from meeting held January 6, 1953.�.��d,:d� 2. Resolution authoriziiig an aoreement with the blinnesota State Agricultural Society (State Fair Board), providing for the Cit}•'s � Police Dept. t furnish radio re air s rvices to tlie Society. ' (Police Dept.)�; ±�, �}�.��„��.-�` ''�;. 3. �tesolution am°ndino the Police Special Projects Fund Budoet to br.ing it in line ilith the actual activity plannecl' for 1983_ ' (Police Dept.)��t�C�1�"'°""�".�j__�..�� -y�.y.,,�. ,_,. 4. Resolution authorizino an agreemen.t betileen the City of St. Paul the U of b1 ��}iereby� the City will provide ari instructor to teach �� P�,� ; at the U of bi's Division of School �fealth Education. (Hezlth Dept.) �--- S. Resolutiort approving the St. Paul Capi 1 AlI _ Program for Capital Improvements (PED) ` ' ��, - � � 6. Resolution adopting tl�e 1984-58 Program for Capital Im ro�re;�ent � as part of the City's Co��p.rehensive Plan. (PED - ,,,�; �� NOT ON THE PREPARED AGENDA: ( � � ( / 7. Resolution allowing employees resigning in 1982, as well as in the four preceding years, the option of receiving the severance pay due him/her in full, or in five equal installment�� ,.�'�i� "`�'.''_. ,_, :.,T —�...i. ..,� CITY HALL SEVBNTH FLOOR Se�INT PAUL. l�fIN�F.SUTA SS)02 ..�„ I ��;r;, C ITY O F SAINT I�AUL ��J� � �ti+ � �o � �� OFFICE OF THE MAYOR , iiif�i'i��n �� . �3� �v� 347 CITY HALL �r��'��`� SAINT PAUL, MINNESOTA 55102 G£ORGE LATIMER (612) 298-4323 MAYOR December 17, 1982 Council President Victor Tedesco and Members of the City Council 7th Floor City Hall Saint Paul , Minnesota 55102 RE: 1984-1988 SAINT PAUL PROGRAM FOR CRPITAL IMPROVEMENT Continued fiscal stress has placed increased pressure and scrutiny on Saint Paul 's allocation systems for funding capital projects. In response to anticipated capi- tal allocation decisions, city staff has increased its efforts to assemble pertin- ent information. Saint Paul 's participation in the Spring Hill Study on Urban In- frastructure is one such instance. City staff and a task force of public and pri- vate representatives (including Councilman Nicosia) are working to clarify local capital investrr�nt tradeoffs for sewer, street and bridge projects. The results will enable the City to make more cost-effective decisions on capital investments and will help city staff develop a more camprehensive 5-Year Program for Capital Improvements. . In the interim, the enclosed 1984-1988 Program for Capital Improvements represents the current thinking of caty staff and the Saint Paul Planning Commission. The Planning Commission held a public hearing on December 3, 1982 and on December 17, 1982, recommended adoption of the Program as part of St. Paul 's Compreh2nsive Plan. The Program is submitted as part of the biennial budget process and is required by the 1976 ��1etropolitan Land Planning Act. The 1984-1988 Program for Capital Im- provements, which updates the 1982-1986 Program, is the result of close cooperation between the Planning Cammission, Department of Public Works and the Divisions of Parks and Recreation and Libraries. The combination of the Spring Hill Study and � the 5-Year Capital Improvements Program will be increasingly valuable resources in the St. Paul 's decision-making process on capital investment. It is trly understanding that your Finance, Management and Personnel Corr�nittee will - - be reviewing this 1984-1988 Program for Capital Improvements at its January 6, 1983 meeting. If you have any questions or need add�tional information, Peggy Reichert, Deputy Director for Planning, and her staff will be happy to meet with you. incer ly . eo Latimer Mayo . , GL/bq Enclosure . _ ��. . a 7�73G �. � . . . .. w . . . . :�, _ . . . . _ _� . �: . - � PAU� � �R . P�ZaGRA�/I F E TS CAPI TA.L I�/IP��VE�1/I I� �98 4�1988 � C(TY OF SAINT PAUL DEPARTMENT OF PLANNING AND ECONOMIC DEVELOPMENT DIVISION OF PLANNING �'ci�y of saint paui � � - : � piannir�g commission resolution f�e nurr�ber $2-4� . _ �l� , �.DprPmhPr 17_ 19f3? . y �.,�,... _ ..�,.,..,.-_ . i+tFtEREAS, the Planning Conmission �f tfi�e City of Saint Pau1 is charged with the development and '�iennial rev�iew ofi �the Program for Capital Improvements in accordance with the 1976 �letropolitan Land Planning Act; and NIHEREAS, the Capital Improvement Proqram Subcommittee of the Planning Comnission has reviewed and revised the 1g82-1986 Program for Capital Improvements adopted by City Coun�il on October 1 , 1981 as part of the City's Comprehensive Plan; and WHEREAS, a public hearing was held on December 3, 1982 at which the Planning Commission considered the proposed 1984-1988 Program for Capital Improvements; and WHEREAS, prior to said hearing, a notice of time and place and purpose of the hearing was published in the official newspaper of the municipa1ity at least ten days prior to December 3,_�9B2; and_ WHEREAS, at said public hearing the �public and Planning Commission members were given the opportunity to completelv discuss and review the pro�osed 1984-1988 Program; and • NOW, THEREFORE, BE IT RESOLVEO, that the Planning Conrtnission of the City of Saint Paul hereby adopts as a segment of the Comprehensive Plan, the 7984-1988 Proqram for Capital .Improvements, a copy of which is attached hereto and incorporated therein by refer�nce; and . BE IT FURTHER RESOLVED, that copies of this Program be transmitted to the Mayor and City .Council of the City of Saint Paul ; and BE IT FURTHER RESOLVED, that the Planning Commission recommends to the City Council adoption of the 1984-1988 Program for Capital Improvements as a segment of the Comprehensive Plan for the City of Saint Paul . , . ��/ed �/ McDonell ��(�d by Kadrie in fav�or � �6 ; agair�st- D �? � - ` � D . . � ,. � " 1984-7988 PROGRAM FOR CAPITAL IMPROVEMENTS INTRODUCTION ; The St. Paul Program for Capital Improvements (PCI) is - ' a plan for proposed capital investment for the five � fiscal year period 1984 through 1988. It identifies those capital improvement projects necessary to meet the service needs of St. Paul citizens within the limita- tion of available financial resources. The PCI was prepared in accordance with the 1976 Metro- politan Land Planninq Act. As defined by the Act, a capital improvement program is: : "An itemizE�i program 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 specific contemplated capital improvements by year, together with their estimated cost, the need for improvements, and financial sour- . ces. . .° The 1984-1988 PCI is the first major update of the City's program. It identifies proposed capital improvemerrts in four �functional areas: transportation, sewers, parks � � and open space, and libraries. 7he PCI is prepared by the St. Paul Planning Commission with assistance from the Departments of Community Services and Public Works. It will be adopted by the St. Paul City Council as Part II of the Capital Allocation Policy. NEED FOR PROGRAMMING One of the major responsibilities of the City of St. Paul CAPITAL INVESTMENT is providing the basic capital improvements needed by � local residents. The City's .existing capital stock-- streets, sidewalks, sewer and water lines, bridges, public buildings, parks--represents a tremendous financial investment. Parts of these systems are in good condi- tion, but require regular maintenance to prevent deter- ioration. Other public improvements are: (a) deter- iorating due to age or deferred maintenance; or (b) inadequate due to changing needs, demands, or technology. DIVISION OF PLANNING • DEPARTMENT OF PLANNING AND ECONOMIC DEVEIOPMENT • CITY OF SAtNT PAUL CITY HALL ANNEX • 25 WEST FOURTH STREET, SAINT PAUL, MiNNESOTA 55102 • TELEPHONE: 612-298-4151 . , �,. �, ' St. Paul 's capital stock must be maintained and appro- . priately expanded in order to serve existing development � and support economic growth. This responsibility is especially onerous at a time when state and federal aids are being cut, and local revenues are insufficient to � � meet expenditures. � ' In anticipation of future funding constraints, it is imperative. that St. Paul carefully assess its capital � needs and develop a long-range plan to finance them. � By estimating capital needs and resources in advance of budgetary decisions, the PCI helps insure that high priority projects which meet the City's service objec- _tives will be funded during the ensuing budget years. RfLATIONSHIP TO The St. Paul Planning Commission uses the PCI to ensure COMPREHENSIVE PLAN that the goals and objectives of the Comprehensive Plan are reflected in the City's capital program. A key objective of the Comprehensive Plan pertains to main- tenance of municipal infrastructure; specifically, the Plan emphasizes that maintenance of existing capital f acilities takes precedence: over service expansion. Adherance to this approach will prevent potential health and safety factors, and ensure that the structural inte- grity of municipal facilities is maintained. Using the PCI 's Program Guidelines (see below) , the Comnission works with the implementing departments to see that j capital projects identified in the Program are appro- priately scheduled as to their priority and timing. RELATIONSHIP TO UCIPBP The PCI provides decisionmaking guidance to the unified capital improvement budgeting process. It directly affects two steps of the process: proposal identifi- cation, and the evaluation of proposals by the Planr�ing � Comnissian. 1. Pro osal Identification. Gitizen organizations and agencies may use the CI as a guide to the investment intentions of city departments. They may coordinate their budget proposals with those of the departments, or use the information to work out differences as to project need, timing, or characteristics. For those departments whose projects are included in the PCI (Public Works and Comnunity Services), their budget proposals will generally flow out of the first two years of the Program. � � . . - 2. .Proposal Evaluation. The Planning Camnission is ' . respons�e for monitoring capital improvement pro- posals for conformance with the St. Paul Capital A1]ocation Policy. Specifically, the PCI is used . . to measure the conformance of transportation., sewer, park and library proposals with Strategy Policy S4, � Basic Systems. This policy addresses the need to systematically repair or replace the City's capital facilities according to a long-range program. 3. It shouTd be noted that the PCI is a flexible state- ment of investment intention. Inclusion of any project in the Program does not represent a funding comnitment. Rather, the programming information is taken into consideration during the biennial UCIPBP and funds are appropriated in the Capital Improvement Budget. PCI PROGRAM GUIDELINES Based on the directives of the St. Paul Comprehensive Plan and the Capital Allocation Policy, the PCI uses a set of program guidelines to classify proposed capital improvements into three overall categories of need: Maintain Quality Basic Services, Maintain Support System, and Expand Services. Projects in the first category, Maintain Quality Basic Services, are relatively more . important than those in the Service Expansion category. However, all projects included in the PCI are of value to the City. Following is an outline of the PCI Guidelines: A. Maintain Quality Basic Services . � A/1 Prevent Hazardous Conditions A/2 Systematic Repair/Replace Existing Service A/3 Bring Developed Area Up to Basic Service Level B. Maintain Support System � C. Expand Services C/1 Expand Existing Service in Planned Redevelopment Area C/2 Expand Existing Service to Developing Area C/3 Provide New Service . , . .� 1984-1988 PROGRAM SUMMARY 1. .Pro osed S endin . The 1984-1988 PCI totals � - 14 ,9 , 3 constan:t 1983 dollars). Of this amount, nearly 52% is progra►r�ned for transportation improve- ments. About 30� is allocated for Park and Open Space improvements, and l8% for sewer improvements. . Library projects comprise a modest 0.7� of projected expenditures. In total, the current Program calls for an average annual capital outlay of $29.2 million , per ye�ar, t 1984-1988 Program: Total Cost = $145,982,830 � . 29.5i 51 .8� Pa rks Transpor-� tation ' 18.0% Sewe rs 0.7% Libraries � co .°n °o °o r°� �o 0 0' � o . . . , o 0 0 � o v o+ o e� � o c , � Q7 CO � N GO� � - . 1. . � � O Q N � OD . �O � �. � � N� . . . . . . ap . at . fh . . �D � � O� ' . . ' . . � C . . . . . . .. � . . . . � � . N . . . '- . . . . . N . . . . . . . w v� O o o C . : � .n O O O � . . O . � p . . .. . O � � . . . 0 p � � � O p N. .O N � � tt� . . . O . . N � . � . '. W f� O N aY • � . " , " � • . .. � �V' .N M � �� . tn �/ tn . � R CO ad . O� . O . . p � � � . O� � � � . . � � ^ . � . . . � . � . . � Q � . tA O �y .. . . . y �D .. . r- . M . . �"" Z r � . . � � � Z LL � N . � . . . _ � . . . . N O O O O � `' Cl � O O A O Q � O O . .� � O . � . . � O Q � � O O O N O- O � .N � � . L� } N < <tf O at O . M � � � � � . .. . . � Q �@fl 1� N p � � f") . M � . r � R � �� . � J � � . . � p � � . . �i Q � H a Q W Q U � O O O� O . . . . . . � . , O ~ N O N O � ' _ . . ... . W � O O O O � O� t� O N P�� O � � � � N Q t0 tf'f � . � . � . . Q . /� �O r- CD N � . N . S'i�{ � � � � .. V . � � � . w � . . . . M . O r `" � � � a � Q °o � °o 0 0° a �r o v v o ao 0 0 � �- o � � � �O � N N � t0 O O . � . V� O� � O t") O� O � � � . N t0 � . . . C� tp r � r � � t�0 . O� � � ^ . . O1 N � � . . � � . � . � r � N � �q � � � � 0 N � O U.Q 0 � 0 0 � � � � . � � � 4 J o rn v o o+ o 0 � Q O� N a+ Q t0 n tD . . O M .. � O � . � .. O � �j F OMD � . � . � � � N N � . �. Of � � M f7 01 O� � LI'f N � � W v � �M . N � „ . „ � O� O� . _ � � M Y� � N � � N � YA r � ¢ - p , . l7 � Z � ' �W . . � W V Q 'ii � � z Z Z � � u, I � o � W ! O 6 � w 0 � . ►' v� -� V v� p . . a d W W . LL � �V1 a •W . O Q Q v�i � � m � � a a a r m o : ►Q- v� a .� � , I i . . . � - . 2. �Pro4ram Emphasis. The 1984-1988 PCI is consistent with the Comprehensiv'e Plan and Capital Allocation Policy's emphasis on maintaining quality basic ser- vices. As illustrated below, 75� of PCI projects � fa11 into the A/1 - Prevent Hazardous Conditions, : and A/2 Systematic Repair/Replace Existing Services, categories. Nearly 95� of the Program comes under the "A" or Maintain Quality Basic Services category. . 1984-19Sc^> PCi 81' PP,T,)�?i?Y C�TEG�P,Y (� of 7ota1) ./�/� . . 23. 5S� ' C/3 0.7 h; " . . `�/� . . . . C/2 3. 1 r' ; � � 51.i;; C/1 1 .6,;; ��3 18.f3� A. h9aintain quality Basic Services 1 . . Preven�t Ha2a r��us Condi ti cr,s 2• Sys�e^�ati c P,�pai r/�epl�ce � Existing 5°T-��ice 3. arir�g Davelo�e� �rea U� to �as�ic Service l.e��el I B. t�aintain Su�port Ss�ste;� � C. Expanc! Sei�vices � 1 . Expar,d Existing Services in Pl�rned Red�ti�el op;�e�t l;rea Z. Expand Exisi.in; Setz�ice to Developit�g �,�,�� , . 3. Proviue 1L�►r Service � . � . .�... .. a � 97.� � ,. � � - ' • 3. Pro ram Financin9• As in past years, the 1984-1988 � rogram taps many sources of federal, state, regional and local monies for its financing. � - Intergovernmental revenues account for about •�7� � of total Program costs. The bulk of this money is � : tagged to street, bridge, and park improvements. It is interesting to note that the federal Conmunity . Development Block Grant (CDBG} has become a less ' significant funding source for infrastructure improve ments. Increasingly, the City is using its CDBG monies for housing assistance and rehabilitation programs. About 37% of the PCI is debt financed by :local Capita Improvement and Water Pollution Abatement Bonds. These general obligation bond monies generally financ street, sewer, and park improvements. The PCI's • anticipated bonding 1eve1 slightly exceeds St. Paul 's � general obligation debt reduction policy. Adopted by the City Council on January 30, 1978 as Council Resolution No. 270479, this policy seeks to control the City's level of bonded indebtedness. It limits the issuance of general obligation bonds to an annual average of $10.5 million through 1985. The 1984- � 1988 PCI anticipates an average annual bonding level of $10.9 million, which is about $0.4 million per year above the City's limit. Bringing the PCI's proposed bonding level into conformance with the � debt reduction policy will necessitate difficult f unding decisions. . 1984-1988 PROGRAM F4R CAPITAL IMPROVET�NTS - CAPITtiL RESQURCES (% of Tutal) � • . ,r � 1984-1988 Program: Total Cost = �146,073,0�0 � LCMR� 0.2� ' : SRF 1 .0� iSSF 0.3%' - . PIA 2.1% - FED 0.9� Ast. ; 2.4� UPARR 1 .2� CA 3.8� CDBG 5.6°6 �GIB 23.9� . � WPA 13.6� ! NinDOT 12.7� MSA 16.1 h Met.Pk. 16.2�; Bonds State Assistance ' C!B Capital Improvernent Bonds MSA Municinal State l,id 6'PA Nater Pollution ADatement Bonds MnDOT Minnesota Department of Transportation Br.RZR Bridge Replacement E Rehabilitation (see M�n007) (includes State Rr.R&R an� . federal FAU, GRR and Br.P.to) Federal Assistance LCMR Legislative f.ommission on Minnesota Resources Grants C�G Comu�mity Development Block Grant . Metro Aqency Assistance GRR 6reat River Road Grant (see N1nD0T) FRU Federal Aid Urban (see Mn00T) F1et.Pk. Metropotitan Parks and Open Space tomnission Grants FED Unspecified Federal Grant ISSF Interstate Substitution Funds County Assistance UPARR Urban Parks Recovery Action Proaram CA County Aid Lity Funds • PIA Public Improve+nent Aid SRF SeNer P.epair Funds Ast. Assessmenis , � TABLE OF CONTENTS � 1 .0 INTRODUCTION l . l ORGANIZATION OF PCI 1 l . NEED FOR CAPITAL INVESTMENT 2 1 .3 UCIPBP 2 1 .4 BENEFITS OF PROGRAMMING 1 .5 USE OF PCI IN UCIPBP � 1 . THE PROGRAMMING PRO E 2.0 PROGRAM GUIDELINES . 1 COMPREHENSIVE PLAN 8 2.2 CAPITAL ALLOCATION POLICY 9 2.3 PROGRAM GUIDELINES 9 2.4 OTHER CONSIDERATIONS 16 2.5 PROGRAMMING DIFFICULTIES 1 3.0 PROGRAM ANALYSIS 3. 1 PROPOSED SPENDING 18 .2 PROGRAM EMPHASIS 23 3.3 PROGRAM FINANCING 25 4.0 CAPITAL SYSTEMS 28 . 1 TRANSPORTATION 4. 1 . 1 STREETS 32 4.1 .2 STREET LIGHTING 48 4. 1 .3 TRAFFIC ENGINEERING 58 4. 1 .4 BRIDGES 63 4.2 SEWERS >> 4.3 PARKS AND OPEN SPACE $� 4.4 LIBRARIES 8 5.0 TECHNICAL APPENDIX . 1 FUND SOURCES 92 5.2 FUND RELIABILITY 98 5.3 CAPITAL SYSTEM PROGRAM DETAIL 101 CREDITS 122 '1 LIST OF FIGURES ` PAGE FIGURE TITLE NUMBER Figure 1 1984-1988 Program for Capital Improvements - 20 Capital Systems (% of Total) Figure 2 Past Appropridtions and Future Need: 18 Transportation, Sewers, Parks and Libraries Figure 3 1984-1988 Transportation Program Costs 21 Figure 4 Transportation Program Costs 21 Figure 5 Sewer Program Costs 22 Figure 6 Parks and Open Space Program Costs 22 Figure 7 Library Program Costs 22 Figure 8 1984-1988 PCI by Priority Category 23 Figure 9 Comparison of 1984-1988 and 1982-1986 PCIs 24 by Priority Category (% of Total ) Figure 10 1984-1988 Program for Capital Improvements - 26 Capital Resources (% of Total) Figure 11 Past Appropriations by Fund Source, 1979-1983 93 Figure 12 1984-1988 PCI by Fund Source 94 � � .�� 1.0 INTRODUCTION �. . The St. Paul Program for Capital Improvements (PCI) is a plan for proposed capital investment for the five fiscal year period 1984 through 1988. It identifies those capital improvement projects necessary to meet the service needs of St. Paul citizens within the limitation of available financial resources. The PCI was prepared in accordance with the 1976 Metropolitan Land Planning Act. As defined by the Act, a capital improvement program is : "An itemized program 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 specific contemplated capital improvements by year, together with their estimated cost, the need for improvements, and financial sources. . ." The 1984-1988 PCI is the first major update of the City's capital program. It identifies proposed capital improvements in four functional areas: transportation, sewers, parks and open space, and libraries. The PCI is prepared by the Planning Comnission with assistance from the Departments of Public Works and Community Services. It is adopted by the City Council as Part II of the Saint Paul Capital Allocation Policy. l .l ORGANIZATION OF PCI Chapter 1.0, Introduction, discusses the role of capital improvement programming in relationship to St. Paul 's capital budgeting process. Chapter 2.0, Program Guidelines, presents the PCI 's policy guidelines which are used to classify proposed capital improvements according to relative priority. Chapter 3.0, Proqram Analysis, examines the spending and financing implications of the 1984-1988 Program, as we11 as a comparison of the current and past programs. Chapter 4.0, Capital Systems, contains a summary and project lists for each capital system. -1- . � Chapter 5.0, Technical Appendix, provides more detailed financial and project information, including a review of fund sources and their future reliability. It also looks at the Program's effect on the city operating budget, the consequetices of project deferral, project life expectan- cies, and any unique factors affecting project justification. 1 .2 NEED FOR One of the major responsibilities of the City of St. Paul CAPITAL INVESTMENT is providing the basic capital improvements needed by local residents. The City's existing capital stock-- streets, sidewalks, sewer and water lines, bridges, public buildings, parks--represents a tremendous financial invest- ment. Parts of these systems are in good condition, - but require regular maintenance to prevent deterioration. Other public improvements are: (a) deteriorating due to age or deferred maintenance; or (b) inadequate due to changing needs, demands, or technology. St. Paul 's capital stock must be maintained and appropriately expanded in order to serve existing development and support economic growth. This responsibility is especially onerous at a time when state and federal aids are being cut, and local revenues are insufficient to meet expenditures. In anticipation of future funding constraints, it is imperative that St. Paul carefully assess its capital needs and develop a long-range plan to finance them. 1 .3 UCIPBP Far many years, the City of St. Paul has used its Unified Capital Improvement Programming and Budgeting Process (UCIPBP) to plan, program, and budget for all capital improvements. The UCIPBP produces a City Council-adopted biennial Capital Improvement Budget and three-year schedule of tentative commitments. The Capital Improvement Budget is a two-year spending and financing plan that appropriates available capital dollars for specific capital projects. The three-year schedule identifies any tentative financial commitments arising from current budget appropriations, such as multi-year projects and ongoing programs. - 2 - , , . As currently structured, the UCIPBP does not provide a long-range assessment of the City's capital needs, nor does it suggest a means of financing. Capital improve- ment programming is an important step toward filling this information gap. By anticipating capital needs and resources in advance of budgetary decisions, the . PCI helps insure that high priority projects which meet the City's service objectives are funded during the ensuing budget years. 1 .4 BENEFITS OF There are many advantages to capital improvement programming: PROGRAMMING 1 . Im roves Plannin b the Im lementin De artments. Assemb ing a capital improvement program requires an inventory of existing capital facilities as to their structural condition and need for repair, replace- ment or expansion. The City is in the process of systematically determining the condition of its infra- structure (i .e. , (the service and support systems identified in Figure 1 of the Capital Allocation Policy) . Using the limited information presently � available, the PCI establishes a framework for depart- ments to identify needed capital improvements, and determine their timing and potential financing sources. 2. Improves Project Coordination. The PCI provides opportunities for coordination among projects with respect to location, timing, and specifications. Interrelated projects can be prograrrrrnned to occur concurrently, while those projects which should precede others can be so programmed. This type of coordination between implementing departments helps assure the efficient expenditure of limited capital funds. 3. Provides Im roved Information to District Councils. The early identification of proposed capita projects in the PCI enables citizens to review the priorities of the Planning Commission and the operating departments, and to examine the specific projects proposed for � their district. Based on this review, citizens can voice major concerns or comnents prior to the approval of the PCI and/or the Capital Improvement Budget. They can also use the PCI to develop district proposals for related improvements. - 3 - . t + 4. Im lements the St. Paul Com rehensive Plan. The anning Commission can use t e 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 implementing departments to see that capital projects identified in the Plan - are appropriately programned as to their priority and timing. 5. Promotes More Effective Use of Available Ca ital Resources. The PCI identifies the eve of investment needed to maintain transportation, sewer, park and library facilities. It schedules proposed capital expenditures over a five year period according to relative priority. This encourages an early review of priorities and helps ensure that essential improve- ments are provided first. It also allows the costs of such improvements to be distributed in a manner that complies with the City's general obligation debt reduction policy. Many capital improvements are financed by general obligation bonds, and the debt service on such bonds is paid for by property tax revenues in the General Fund Budget. Public services are also financed by the General Fund Budget. Therefore, it is important that general obligation debt is held at a level whereby tax revenues needed to provide quality public services are not unreasonabTy siphoned off to cover debt service payments. Effective debt management also reflects favorably on St. Paul 's bond rating. An improved rating leads to lower interest rates on the bonds issued by the City. 6. Coordinates the Capital and General Fund (Operating) Budgets. By looking ahead for five years to see what facilities must be built, replaced, or repaired, the City can simultaneously estimate any increased (decreased) operating costs resulting from such improve- ments. It can also determine any financial liabilities resulting from deferring capital projects to cover operating expenses. - 4 - � ' � 1 .5 USE OF PCI IN UCIPBP The PCI provides decision-making guidance to the unified capital improvement budgeting process. It directly affects two steps of the process: proposal identification, and evaluation of proposals by the Planning Commission. Currently, budget proposals are identified by citizen � � organizations (district councils, business groups, community groups) , public and private agencies, and city operating departments. 1 .5. 1 PROPOSAL IDENTIFICATION Citizen organizations and agencies may use the PCI as a guide to the investment intentions of city departments. They may coordinate their budget proposals with those of the departments, or use the information to work out differences as to project need, timing, or characteristics. For those departments whose projects are included in the PCI (Public Works and Community Services) , their budget proposals will generally flow out of the first two years of the Program. Because the PCI is compiled � approximately six months before proposals are submitted, it may be necessary to adjust the program schedule to accomnodate changes in capital needs or funding. Any such amendments to the Program, and the reasons therefore, will be forwarded to the Planning Comnission when budget proposals are submitted. The Commission will evaluate the amendments with respect to the adopted PCI and its funding priorities. It should be noted that the P�I is a flexible statement of investment intentions. Inclusion of any project in the Program does not represent a funding cormii tment. 1 .5.2 EVALUATION OF PROPOSALS The Planning Commission is responsible for monitoring capital improvement proposals for conformance with the Strategy Section of the Capital Allocation Policy. The PCI will be used to measure the conformance of transportation, sewer, park and library proposals with Strategy Policy S4, Basic Systems. This policy addresses the need to syste- matically repair or replace the City's capital facilities according to a long-range program. -5- t 1.5.3 FUTURE ROLE A thorough investment program for St. Paul requires an improved understanding of the extent of infrastructure deterioration, and reliable estimates of future capital expenditures� and revenues. The City must increase its limited knowledge of these factors and continually incorporate . such knowledge into its program for capital investment. 1 .6 THE PROGRAMMING PROCESS The PCI is revised biennially by the Planning Commission in cooperation with the implementing departments and Mayor's Office of Management and Budget. The programning process is initiated in July of the first year of the biennial Capital Improvement Budget, e.g. , July 1982 of the 1982--1983 Budget. At that time, the Planning Division distributes project submission instructions and project detail forms to the implementing departments. The Division also meets with the Planning Commission 's Capital Improvement Program Subcommittee and the City's Long-Range Capital Improvement Budget (CIB) Corrmittee to go over the process, and their responsibilities thereto. Using the project detaii forms, the implementing departments prepare their project lists, identifying needed capital projects, detailed cost estimates and anticipated source(s) of financing. In addition, they review the previous Program Guidelines and suggest revisions, as warranted. The Capital Improvement Program Subcommittee reviews and approves the proposed changes to the Guidelines. The project detail forms are forwarded to the Planning Commission in early September. Its Subcommittee has until early October to review and analyze the project lists, and develop them into a program. The draft program is reviewed for conformance with the Program Guidelines. Upon approval by the Subcommittee, it is presented to the full Comnission, which approves its release for public review. The Mayor 's Office of Management and Budget, CIB Committee, City Departments, District Councils, and interested citizens have about six weeks to review and comment on the document. The Commission conducts a public hearing in mid-December. Following any subsequent revisions to the draft, the Commission approves the Program in late December. It is then forwarded to the City Council for adoption as Part II of the Capital Allocation Policy. -6- a � g7� � l Juiy . Tf�e �Eer�nial Prograanmeng Process � Planning Division distributes , ' project submission instructions to affected City Departments. August — Septemiser • City departments prepare � Project Lists. � Planning Commission's Capital Improvement Program Subcommittee reviews, revises (as warranted) , and approves the 'Program Guidelines' . � September - October • Planning Division receives Departments' Project Lists, assembles the five-year Program, and analyzes the spending =n� firancing �mnli- cations of the draft program. • Planning Commission' s Capital Improvement Program Subcommittee reviews the draft PCI for con- formance with the Program � Guidelines ar►d St. Paul Comprehensive Plan. October - November • Planning Commission apgroves the release of the draft PCg for public review and, sets a public hearing date. � Mayor's Office Budget Section, City Departments, CIB C�ttee, • District Councils and interested citizens have about six weeks to review and comment on the draft PCI. w, December . • Planning Commission conducts a public hearing on the draft PCI; draft program may be revised based on public testimony. • P 1 ann ing Commi s s i on appr ove s the PCI and transmits the document to City Councii for adoption. January • City Council adopts the PCI as Part II of the St. Paul Capital Allocatian Policy. - 7 - 2.0 PROGRAM GUIDELINES , . , The 1984-1988 Program for Capital Improvements (PCI) was developed based upon the goals and objectives of two major city policy documents - the Comprehensive Plan and the Capital Allocation Policy. The Comprehensive Plan identifies the City's key objectives for the 1980s. The Capital Allocation Policy works to insure that capital - resources are allocated to those activities deemed essential to the long-term health and vitality of St. Paul . Because the City's capital improvement needs continue to exceed its capital resources, the PCI establishes a set of program guidelines which are used to classify proposed capital projects according to relative priority. These guidelines are based on the adopted policies of the St. Paul Capital Allocation Policy and the Comprehensive Plan. This chapter discusses: (1) St. Paul 's key objectives, as established in the Comprehensive Plan; (2) the Capital Allocation Policy; and (3) the PCI's method for programming proposed capital improvement projects. 2. 1 COMPREHENSIVE PLAN The Comprehensive Plan is St. Paul 's official planning � document. It provides a vision of the City's future potential while guiding its response to current issues and opportunities. Because St. Paul is faced with many service needs which surpass its limited supply of resources, attention must be directed to those activities of critical importance. The Comprehensive Plan focuses on four objec- tives essential to the future well-being of the City. These key objectives are: 1 . To maintain city infrastructure. 2. To expand job opportunities. 3. To expand housing opportunities. 4. To achieve greater energy efficiency. The PCI concentrates on the first area of focus: main- taining city infrastructure. The infrastructure consists of capital facilities provided and maintained by the City, such as streets, sewers, parks, public buildings,� etc. The Comprehensive Plan emphasizes that maintenance of existing capital facilities must take precedence over service expansion. Adherence to this approach will prevent potential health and safety hazards, and ensure that the structural integrity of our public facilities is preserved. - 8 - . , . • 2.2 CAPITAL ALLOCATION The Capital Allocation Policy, Part I of this document, POLICY provides guidance for all appropriations of capital improvement monies. All capital improvement budget proposals are developed an.d reviewed in accordance with these policy directives. - The PCI is designed to apply directly to Strategy Policy S4, Basic Systems (Part I, see page 1�) . This policy addresses the need to systematically repair, rehabilitate or replace the City's infrastructure in accordance with departmental long-range programs. The PCI provides such a long-range program in the functional areas of transporta- tion, sewers, parks and libraries. 2.3 PROGRAM GUIDELINES The PCI uses a set of program guidelines to group proposed capital improvements into three overall categories of need: Maintain Quality Basic Services, Maintain Support System, and Expand Services. These categories are listed in order of importance as determined by the policy directives 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 Service Expansion category. However, all projects included in the PCI are of value to the City. This prograr►rninc information is taken into consideration during the capital budgeting process. Funds are appropriated 'in the Capital Improvement Budget. Following is an outline of the PCI Guidelines and their applicability to the various elements of the capital system: (A) MAINTAIN QUALITY BASIC SERVICES This category includes projects which ensure that basic services are maintained at a level that preserves the public health, safety, and general welfare of city residents. This level of service is defined in appropriate chapters of the Comprehensive Plan, and in the implementing depart- ments ' stated goals and objectives. -9- - �� y�� . Within this category, there are three subcategories: (A/1) Prevent Hazardous Conditions This su category pertains to conditions that threaten life, health, or safety. Projects that prevent or correct hazardous situations and/or critical breakdowns are included. - � Most of the capital improvements in this subcategory are required to prevent emergencies. Streets: Conditions where the physical and traffic charac- teristics of the street combine to create a situation with greater potential for high accident rates. For example, the combination of high traffic volume, narrow traffic lanes, and poor surface conditions creates an exceptional problem. Lighting: Lighting that does not meet the Illumination Engineering Society's guidelines for level of street lighting. Traffic En ineerin : Controllers on traffic signals that are years old or more. (The design life of a � traffic signal is 20 years. ) Controller failure creates a hazardous situation. �B�rid9-e-s-: a. Structures unable to carry legal loads due to deter- ioration or obsolete design. b. Structures having holes extending through the deck, or having surface obstacles that divert drivers' attention. c. Structures with unsafe geometrics, such as grades and vertical curves without proper sight distance, or side obstacles which increase chances of head- on collisions. d. Structures having less than legal clearances (both over and under), where the possibility of being struck by vehicles or trains could cause the bridge to collapse. e. Structures deteriorating at a rate which will create conditions a. or b. prior to the year in which the � bridge is programned for repair or rehabilitation. - 10 - . 1 Sewers• �ewers where collapse or rupture is imminent. b. Sewers where land use or other factors have changed dramatically since initial construction, causing sanitary sewer backups into homes and businesses, combined sewer flooding, and dry weather combined - sewer overflows into the Mississippi River. c. Facilities that do not conform to federal and state safety regulations. Parks: Projects involving improvements or repairs that reduce or eliminate the potential for accidents or safety problems. (Examples: rehabilitation of a recreation center that might otherwise have to be closed due to health and safety code violations; installation or repair of retaining walls along park bluff areas. ) Libraries: Projects involving improvements or repairs which reduce or eliminate the potential for accidents, e.g. , repair of retaining walls. (A/2) Systematic Repair/Replace Existing Service This subcategory includes projects relating to the syste- matic repair, rehabilitation or replacement of physically deteriorated or functionally obsolete facilities. By addressing these needs on a systematic basis, the City can ensure the structural integrity of its capital facilities and prevent potential health and safety hatards. Projects that increase energy efficiency in existing facilities are also included in this category. Streets: "Drivability" (i .e. , driver discomfort and traffic volumes) is the concept that determines the need for these improvements. Factors demanding attention include: unstable subgrade materials; base failure; deteriorating surface; drainage problems with the curbs and gutters; and, boulevard erosion and drainage problems typically found along streets without curbs. Lighting: Systems require replacement when the cost of repair approaches the cost of a new system, or when the existing system is considered obsolete from an energy standpoint. -11- x Traffic Engineering: a. Traffic signals that are 20 years old or more require systematic replacement of various structural parts (see A/1 regarding the signal controller). b. Street name signs along arterials that need to be made more visible. Bridges: Structures to be repaired or rehabilitated prior to the development of a hazardous situation (see A/1) . Sewers: Sewers where continued use is likely to result in unusual and excessive operational and/or maintenance costs. Need should be based on inspections, inflow and infiltration analysis, and maintenance records. Parks: Rehabilitation or replacement of existing park and recreation center facilities that do not require immediate attention to alleviate hazardous situations (e.g. , renovation of a recreatian center to improve energy efficiency, replace worn out or obsolete components and improve usability; relandscaping of a park to improve � appearance and increase use) . Libraries: Rehabilitation of existing library buildings to increase energy efficiency, to increase usability, to preserve a needed building for public use, or to relocate an operation into a smaller, more efficient location. �A/3) Brinq Developed Area up to Basic Service Level Some developed areas of the City are not present Ty 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. Streets: The Residential Street Paving Program replaces presently unpaved and deteriorating residential streets with a paved roadway, curbs and gutters, and lighting. This alleviates problems associated with oiled streets,• i .e., relatively unstable surfacing and eroding boulevards. Lighting: As roadways are repaved, the lighting is usually improved to meet the minimum standards recommended by the Illumination Engineering Society. - 12 - X Traffic Engineering: New signals installed based on criteria in Minnesota's Manual on Uniform Traffic Control Devices, or where determ�ne y action o e ayor or City Council. Bridges: Reinforcing an existing bridge to allow for - increased loads, e.g., a structure designed for passenger cars which is reinforced to allow truck loadings. Sewers: a. Upgrading of sewer capacities to handle increased stormwater runoff and flooding in urbanized areas. Upgrading includes both storm sewer pipes and ponding areas. (Note: combined and sanitary sewer flooding is not included since this would constitute a health hazard and come under priority A/l . ) b. New sanitary service to areas relying on septic tanks. c. New service which alleviates stormwater problems in special circumstances. Parks: Projects involving acquisition or expansion of facilities in areas that are identified as unserved or underserved in the Parks and Recreation P1an (e.g. , acquisi- tion and developent of a passive park in an area which has no open space within 2 mile; construction of a recreation center at a site that has no building.) Libraries: Projects providing service outlets in under- served areas, e.g. , area served by a bookmobile but warranting a higher level of service. This category could include establishing a reading center in an area. (B) MAINTAIN SUPPORT SYSTEM Maintaining quality basic services requires an adequate support system or back-up facilities, such as administrative offices and facilities for comnunication, storage, training and education, and repair and maintenance. Capital improve- ments in this category should directly support the ability of city government to provide services efficiently and effectively. - 13 - , (C) EXPANO SERVICES The last category pertains to the construction of new facilities or additions to existing capital facilities. Such expansion of service may be advisable in order to support economic development, physical growth, or to respond to a serious service problem. Due to the limited . availability of funds, improvements of this type are generally of lower importance than those which maintain the existing infrastructure. There are three subcategories within service expansion: �C/1) Expand Existing Service in Planned Redevelopment Area When redevelopment creates a need for new or expanded capital facilities, such facilities should be provided so as not to interrupt service. This type of improvement helps assure successful redevelopment and promotes economic growth. Planned redevelopment areas have been identified in the Land Use element of the Comprehensive Plan, and in action plans, such as the Energy Park Master Plan. In addition, the following have been identified: Streets: Energy Park. Lighting: Improved or expanded lighting to meet minimum levels is routinely provided in redevelopment areas. Traffic Engineering: Expanding a service citywide. Bridges: Not Applicable Sewers• a. Providing adequate capacity for proposed redevelopment of a higher intensity than the existing development. b. Storm and sanitary sewer separation in areas now served by combined sewers. Parks : Not Applicable Libraries: Not Applicable -14- . (C/2) Expand Existing Service to Developing Area This subcategory pertains to those areas where land is undeveloped and not fully served by municipal infrastructure. Most of these improvements are provided by assessing benefitted property owners, thus, they initially place less strain on the City's capital resources but add to - its ongoing maintenance responsibilities. Streets: New streets are generally provided on demand in newly developed areas. They are initiated by petition and financed by almost total assessment of the project costs against the benefitted properties. Lighting: Lighting for new streets and developments are at the discretion of the developer. The Public Works Department places a low priority on lighting expansion in these areas. Traffic Engineering: Providing new signals where increased development creates a need as based on the Manual on Uniform Traffic Control Devices. Bridges: Not Applicable Sewers• a. Storm and sanitary service to the Highwood area. b. Special study for the proper design and management of sewage and starmwater in large developing areas. Parks : Not applicable. Libraries : Not applicable. There must be a population base in existence to support the establishment of a library, regardless of the level of that library outlet. (C/3) Provide New Service Due to the City's limited resources and the cost of con- structing, operating and maintaining capital facilities, new services are only provided under very special circum- stances. Streets: Not Applicable. Lighting: Not Applicable. -15- Traffic Engineering: Not Applicable Bridges: Not Applicable Sewers• a. �roviding outlets for clearwater discharge from indus- . trial or commercial uses, primarily via stormwater sewers. b. New storm and sanitary sewers serving areas of combined sewers where capacity is not presently a problem. c. New relief sewers that will reduce treatment costs by removing flow from the treatment stream. Parks: Projects that reguire development of park and recreation facilities not currently offered by the City and which require additional city staff and maintenance, e.g. , constructing a handball facility. Libraries: Projects resulting in the delivery of library service in a totally new format for the City of St. Paul , e.g. , a porta-structure or kiosk library in a location such as the skyway system or Town Square. .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 discussed below. Specific projects that are affected by these considerations are discussed in Chapter 5.0, Technical Appendix. A, PROJECT COORDINATION Capital improvement prograrrming permits several inter- related projects to be coordinated as to their timing and specifications. For example, street and sewer improve- ments can be scheduled so that the sewer work is completed before the street work begins. This may necessitate programming a less important sewer project prior to a much needed street paving. B. UNIQUE FACTORS AFFECTING PROJECT JUSTIFICATION Programming should take into consideration special factors or funding opportunities that may affect project need or project timing/phasing. When these types of projects meet identifiable city needs, they should be appropriately prograrr�ned to address such needs, or to take advantage of available funds. , -16- � y � � � m x � m s f ¢ � u� � �Z � j �- ' � z' j � � v, � � N � m � � T y J O � . • . o �� p N � = N -�i � ' - i . �Z .� o � i i m � Z D � m L� � T O �• � ' tn � � . -s � J q � � � - . 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C, CC N � 0 � v C � � C �m a p c - m p C C w C C �."� p C C C C _ p C C - 1 I"- , ► • . FIGi1RE 2 1984-1988 PROGRAM FOR CAPITAL IMPROVEMENTS - CAPITAL SYSTEMS (% of Total ; 1984-1988 Program: Total Cost - - $145,982,830 29.5� 51 .8% Pa rks Transpor- tation 18.0% • Sewe rs 0.7% Libraries 1982-1986 Pro4ram: Total Cost = �133 ,588 ,000 46.0% 33.0% Transpor- Parks tation 21.5% Sewe rs �n , i A short synopsis of each capital system's prajected cost is given below. See Chapter 5.0, Technical Appendix, for a detailed financial analysis of each system. 3. 1 . 1 TRANSPORTATION The Transportation Program prajects total five-year costs � at $75.6 million, or approximately �15. 1 million per year. This program includes street, street lighting, traffic engineering and bridge impravements. Streets and bridges are the most costly systems, comprising about 51% and 39q of total anticipated transportation expenditures, respectively. Compared t� the 1982-1986 PCI, anticipated spending for streets and bridges has increased, while lighting and traffic engineering has decreased. Figure 3 1984-1988 Transportation Program Costs (In Thousar.ds) Capital Year System 1984 1985 1985 1987 1988 Total Streets 12,338.4 6,273.0 7,420.0 6,408.0 6,484.5 38,923.G Lighting 1,021 .4 1 ,404:2 551 .8 212.0 219.0 3,4Q8.4 Trffic Engr 320.0 620.0 2,020.0 320.0 320.0 3,6UO.t� Bri'dges 1 ,909.8 8,576.7 4,462.4 9,848.7 4,887.3 29,744.� TOTAL 15,649.6 16,873.9 14,454.2 16� 11 ,910.8 75,677.2 Figure 4 Transportation Program Costs (% of Total ) Capital System 1984-1988 Program 1982-1986 Program Streets 51 .4� 50% Lighting 4.5% 7�* Trffic Engr 4.8% 7% Bridges 39.3% 36% X Lighting projects that were associated with street paving projects were included in the Streets capitai system. - 21 - � `� � �'? u . 3.1.2 SEWERS The program for sewers anticipates a $26.2 million spending level, or about $5.2 million per year. This represents a decrease from the 1982-1986 PCI's proposed spending level of $28.3 million. The decline is primarily caused by the anticipated completion of the St. Anthony Sewer • � Rehabilitation Project. This project received nearly $6 million in the former program. Figure 5 Sewer Program Costs (In Thousands) 1984 1985 1986 1987 1988 Total 5,680 5,120.5 4,380 5,701 .5 5,316.6 26,198.6 3.1 .3 PARKS AND OPEN SPACE The Parks Program calls for $43 million, ranging from $5.6 to $11 .4 million on an annual basis. These fluctuations are primarily caused by anticipated grant awards from the Metropolitan Parks and Open Space Commission, which range from $2 to $6 million per year. Most of these funds are targeted for the rehabilitation of Como Park. Figure 6 Parks and Open Space Program Costs (In Thousands) 1984 1985 1986 1987 1988 Total 5,995 11 ,435 9��5 1�05 5,6�35 �,1�5 3.1 .4 LIBRARIES The Library Program is estimating future expenditures at just under $1 .0 million, all of which are scheduled for 1984 funding. This figure does not represent total capital spending, since the St. Paul Public Library finances many system improvements from private donations. The proposed expenditure level for 1984 is somewhat unrealistic; these costs are likely to be phased over a multi-year period during the City's upcoming capital budgeting process. Figure 7 Library Proqram Costs (In Thousands) ' 1984 1985 1986 1987 1988 Total 9�0 - - - - 95�.� -22- . , 3.2 PROGRAM EMPHASIS The 1984-1988 �PCI is consistent with the Comprehensive P1an and Capital Allocation Policy's emphasis on maintaining quality basic services. As illustrated in �Figure 8, 75� of PCI projects fall into the A/1 - Prevent Ha2ardous Conditions, or A/2 - Systematic Repair/Replace Existing Services, categories. Nearly 95� of the Program comes . � under the "A" or Maintain Quality Basic Services category. Figure 8 1984-1988 PCI BY PRIORITY CATEG�P,Y (% of Total) A/1 . A. P1aintain Quality Basic Services 23.5% l . Prevent Hazar,dous Conditions C/3 0.7%; 2. Systematic Repair/Replace A�2 � Existing Se rvice � 3. Bring Developed Area Up to Basic C/2 3. 1%� 52 i� Service Level C/1 1 .6 r,; A/3 . B. Maintain Support System 18:8� C. Expand Services 1 . Expand Existing Se rvices in Planned Redevelopment Area 2. Expand Existing Se rvice to Developing Area 3. Provide New Service . - 23 - , Figure 9 shows how the capital needs of each capital system has changed since the adoption of the 1982-1986 PCI. Transportation continues to stress A/1 and A/2 projects. The needs of the Sewer Program have shifted somewhat, with fewer projects in the critical A/1 category, and a greater emphasis on bringing the system up to a . � basic service level . The Parks Program has strengthened its emphasis on systematic repair and replacement. Figure 9 COMPARISON OF 1984-1988 AND 1982-1986 PCIs BY PRIORITY CATEGORY (% of Total) Priority Transportation Sewers Parks Libraries Category 84-88 82-86 84-88 82-86 84-88 82-86 84-88 82-86 A/1 36.6X 38% 23.5% 44% - - 51 .0% NA A/2 38.5% 36% 13.6% 5% 100� 97% 49.0% NA A/3 19.2� 16� 49.6% 31% - - - NA g _ _ - - - 1% - NA C/1 3.1� lOX 13.3% 4� - 2% - NA C/2 1 .3X - - 16% - - - NA C/3 1.3% - - - - - - NA -24- , t 3.3 PROGRAM FINANCING As in past years, the 1984-1988 Program taps many sources of federal, state, regional and local monies for its financing. � Intergovernmental revenues account for about 57% of total Program costs. The bulk of this money is tagged to trans- - portation improvements, such as Municipal State Aid and various sources of federal highway and bridge aids that are administered by the Minnesota Department of Transportatior. The Parks Program is strongly supported by anticipated grants from the Metropolitan Parks and Open Space Commission. It is interesting to note that the federal Community Development Block Grant (CDBG) has become a less significant funding source for infrastructure improvements. Increasingly, the City is using its CDBG monies for housing assistance and rehabilitation programs. About 37% of the PCI is debt financed by local Capital Improvement and Water Pollution Abatement Bonds. These general obligation bond monies generally finance street, park, and sewer improvements. The PCI 's anticipated bonding level slightly exceeds St. Paul 's general obligation debt reduction policy. Adopted by the City Council on January 30, 1978 as Cauncil Resolution No. 270479, the policy s2eks to control the city's level of bonded indebted- ness. It sets two goals: 1. To reduce, by 1985, St. Paul 's general �obligation debt per capita for the local government units from $1 ,005 to $900 or less; and 2. To reduce, by 1985, St. Paul 's general obligation debt as a percentage of estimated market value for the local government units from 8.5% to 6% or less. In order to achieve these goals, the policy limits the issuance of "bonds to an annual average of $10.5 million through 1985. Since the adoption of this strategy, the City has made substantial progress toward its goals. As of December 1981 , the amount of debt per capita had declined to $940, and local general obligation debt as a percent of market value had declined to 4.5�. The PCI anticipates an average annual bonding level of $10.9 million, which is about $0.4 million per year above the city's limit. -25- FIGURE 10 1984-1988 PROGRAM FOR CAPITAL IMPROVEt�1ENTS - CAPIT,'1L RESOURCES (% of Total ) 1�84-19$8 Program: Total Cost = $145,982,830 LCMR 0.2% SRF 1 .0% ISSF 0.3°0 PIA 2.1% ; FED 0.9% As t. � ?..�" UPARR 1 .2;0 CA 3.8°� CDBG 5.F% CIB 23.9i� IdPA 13.6� ; �,'�i �� fSA 16.1% MnDOT 12.7% Met.Pk. 16.2% Bonds State Assistance CiB Capital Improvement Bor,ds MSA tdunicinal State Pid 6'PA 6later Follution Abatement 6onds N�nOOT Minnesota Depar�..ent c= Trar,spor*_ation Br.P.?�R Bridge Replacement & P.ehabilitation (see 1•inDOT) (incluc;es State Pr.R£� and federal FP.U, GRR and Er.PF.R} Federal Assistance LCMR Leoislative Com�?ssior en t',inn�sot.a Resources Grants CDBG Community Development Blotk Grant Netro Fqency Assistar,ce GP,� Great R.iver Road frant (see *1nDOT) FHO Federal Fid Urban (See N�r,UOT) t4et.Pk. t?etropolitan Par;;s ard O�er. Space Cortsnission Grants FF.0 Uns�ecified Federal Grant 1SSF Interstate Substitution Funds County Assistance IIPARP. Urban Parks Recovery Action Prooram CF; C.ounty A.id Citv Funds i'Iti Public Inor•uverwn: Air $Rr Sewer Rep��r FuneS Ast. Assessmerts _ ')� _ . � In total, the PCI includes some overprogramming of funding sources. Many projects that receive funding in the City's Capital Improvement Budget are not represented in the PCI (e.g., police and fire projects) . These projects compete for the same financial resources as PCI projects. Therefore, the City is likely to face difficult funding , decisions as total capital budget requests exceed available resources. However, the PCI 's Priority Guidelines will assist in choosing between projects, and help assure that essential improvements are provided first. - 27 - _ g Z _ ' �S ydP.AEp.�P(I /C,�O�EUP�CIX2 ay� o� puodsa.�.�o� SWB�L p2(�,�L� ay�) Mo�aq uan�6 s� puno,} aq o� uo i�ew,�o�u� �o sad�'�. ay� pue w,�o� ay� �o uo��d�a�sap y 'UOL�PWaO�UI �o �.unowp �sen p sap�no.�d s�s�� aCo,�d ay� a�idwo� o� pasn wao� ayl •6u�pun� pue sn�e�s ��afo.�d u� sa6upy� y�ns ��a��.a.� o� �'��e�uua�q pas�na,a aq ��M s�s�� ayl •sa�qp�.�en .�ay�o pue `uo��pw -,�o�.0� Mau �o �'aano�s�p ay� �sa�ue�swn�,�i� uaasa,�o�un �o a�ue,�paddp ay� `6u�pun� �.o �'�.��qe�ipne ay� y��M 2�UPp,AO��E ui a6upy� ��M �'ay� �s.�ea�' an�� xau ay� ,�anp •aw�� Slu� �p B�qP�ILAL> SL �21�� BUL�UPUI,} pUE 6u�puads �p�ldE� a.�n�n� ,}o a�pw��sa �saq ay� �uasa,�da.� s�s�� .�afo,�d ayl •s�s�� aCo,�d ay� sapa�a,�d wa�s�'s �2�LdE� y�ea �o F,�pwwns y •sa6p�aq pup '6u�,�aau�6ua ��,}�p,�� °6u��y6�� aa,��s �s�aa,��s ,�o� suo��asqns o�u� papinip si �uauodwo� uo��p�.�od -sue.�� ayl •sai,aeaq�� pue s�apd �s,�aMas °UOI�E�,�O(JSUp.�� :wa�s�'s ��e��de� y�Ea ,�03 s�s�� .�aCo,�d ay� a.�e 6u�MO<<o� . SW3ISAS lt/lIdt/� 0'ti . > - 6Z — � •o � V � ). 3 . • . �'1 3'�7 » � "< r i � y T� tn - •� ^i o � f�� ID Tl n �i � � n p -t � ::t --I � • ' Y O A / � L m O n � f - _i -� m �. O m m n A V � � Z .-.m ..y Ui u..� p0 �-� D r-r y N � �.� .� � O ,, m - ° � � � m � o � ` � � � tn _` D � z° = p m m'^ N � VI � � 0 O n n � a y � m d D m ]0 n 0 N -�1 . N ii C z � o m N V 0 C � n -m � (J G o � H �� c� 0o rn A o O � � d . ?{ 0 z �� .� � � � � A. PRIORITY CATEGORY This line identifies the classification category for all the projects listed on that page. These categories are described in detail in Chapter 2.0. � A/1 Maintain Quality Basic Services--Prevent Hazardous Conditions A/2 Maintain Quality Basic Services--Systematic Repair/ Replace Existing Service A/3 Maintain Quality Basic Services--Bring Developed Area Up to 6asic Level B Maintain Support System C/1 Expand Services--Expand Existing Service in Planned Redevelopment Area C/2 Expand Services--Expand Existing Service to Developing Area C/3 Expand Services--Provide New Service B. CAPITAL SYSTEM This line indicates which of the service system compo- nents (Transportation, Sewers, Parks, Libraries) are represented on that page. The Transportation subsystems (streets, lighting, traffic engineering, bridges) are also identified. C. DEPARTMENT/DIVISION The compiler of the Project List is identified here. D. PAGE The page number of the Project Lists for each capital system is given here. E. DISTRICT This column identifies the Citizen Participation District(s) where the project is located. F. WARD This column identifies the city ward(s) where the project is located. G. PROJECT TITLE/DESCRIPTION � Individual projects are identified and briefly described in this space. If the project was previously proposed for funding in the St. Paul Capital Improvement Budget, its UCIPBP Log Number is also included. Projects for which additional information can be found in Chapter 5.0, Technical Appendix, are footnoted. - 30 - H. COST The six cost columns identify: (1) the estimated total cost of the project; (2) the proposed year(s) for the project to be funded; (3) the estimated cost for each year; and (4) the anticipated source(s) of funding. All cost figures are in constant 1983 dollars. The identified fund sources are the most likely sources; however, they are subject to change because most projects can be financed by more than one fund source. Funding decisions are made in the capital improvement budgeting process. I. COORDINATION This column identifies other projects and agencies that affect a projects' specifications and timing. The listed project should be coordinated with these projects/agencies. - 31 - . RAN PORTATION 4.1.1 STREETS The program for streets primarily contains street overlay or street reconstruction projects. Traffic signal work is included when specified. The following abbreviations of fund sources are used on the Project Lists: CA County Aid CDBG Community Development Block Grant CIB Capital Improvement Bonds MSA Municipal State Aid GRR Great River Road PIA Public Improvement Aid ISSF Interstate Substitution Funds i ; ; I ' I ; I i ; ; I I � i - '3 2 - i i - £� - A ao y � ,�, N � � D P P D y � � N Z_ . � v Z � v ' � ""` �v u�i Z D� Si< � > � �Z zn m � �z �� < Z � � Op m0 < .0 �n� Z� 2 C� � m � Om n � � m m �D -r D O � f� X y -{ � 2 y--�i . O�-NI (m .. 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O + .,.� i Z ! o tp : � 1 � Z i � I , . � �„�� 1 �' , _ L 5 _ � � ; 0 � � � s � . a � � r � s v, 1 -� D O ; . a D o � � � � '"'� . . . .O '7 � v� r �S � ' � � 1/� � �t N v �o m � a m o � �a I o � i i � � m � �° � a� � r• s � n � . � � o cN+ 0 �i, � �� m '' � N � �.N C) � b S� � k �f O i �c i Z r�o o z � • � I � � I �� i o ,� < � o OD m I ° � � o D n O N y � � � `. � � 9 O � � � � m � i m v y < � � � y N p � . . n° � � � � O W O D z "{ ° o -i , �T1 0 0 � o N ° . °o � v O iQ D � I� � < �o � � �' � N � \ 0 �� I 3 N � T ; I� _ � y I V Q � I � � � I s O ' m � � I I O � Z D i 1 � � � 2 , .1.3 RAFFIC NG N N This program includes projects such as traffic signals, traffic channelization, and street signage. When traffic signal work is required along with street reconstruction/ paving, the signal work is included in the Streets Program. Abbreviations used in the Traffic Engineering Program are: CIB Capital Improvement Bonds FED Unspecified Federal Grant MnDOT Minnesota Department of Transportation MSA Municipal State Aid - 58 - - 65 - � m y , : � � � � . . �� L� � �. > � -N P D � � . . � � . - . - �. � � X r�Si � �. . D D D x<y ]7 D � . . . � .� - � �Z � D Z n Z � n� y i m Z � � . . �, � < g - � � � d. OO� �p < � �� y�m Zm Z y � - � - . . . � 4��. �txn 41 " �C R1� r � . . . q_ O-1 . . '� A� 27 y � � � � Dy my � �V mD �D � y _ m a �a �3 �n a v�Oi w � � m� y � (� m� O � D z � c�i o �,�, < � s � m =i � Z y . . � M � �� . W 1V � O� (.J ��I � .b � . p O O � O� . . . O � � � p . � . . . . . . � � �� 1 a w tA N p� n+ � � 0 � J /\ � 0 � �/ ' O . ... p . � . O O ' . ^L LI Z m � _ �. ,� � N � ' ~ .. O � . p O O � 'N O � O . . . . O O � m '� .. � O . O � � O O � � �� '� �� M � � � N ►+ � � ,i� � N V� OD CD � . O O O O m . , O . p O g � i� . . ` Z i� � ,� � •� M a F+ .. � 0 � 0 � . 0 Q � � 1 . 0 0 0 0 � c c °o °o w � W r N � . � � .. � O O . . :O O O y� + o � � � . � . Q . . . � 0 � . � . � � � . . . . - .. . . . . ; - 09 - . � � .. . � . � n �n � �� m� �� a r� � v � K I� .► � "'1 . � . � � �N IA t71 W � �0�1 � -�+��o O o1 . ni "'' ai r- � om � go m � v o _' I 'y � u+ � � � 0 � �y � � . . � .. . .. .. 10N� < � -�a .. . �n < d eo � �' � �� . . . . . . -i�O �n N � Ir, I� � � .. � . � � Cf� O 7 O � � . �'��f . . . � O� O N� � N � m � � . � - � 7 I -A-' -w �� + ./� J � � � �k � � (m�1 � � .� . . � pJ a e�+7 v�i C� w � fY � . . - .. � � < C 7\ 0�1 � -+. A � . � - . � . . . . ff -+� f�D � � . . .. . . � �. .. v�i0 � � � !p. � � . . � . � . � � � � O �c � 7 ,r. in I O � O CAO ^}�� tl + � � � O O W..�� ' . O � 1 °o °o p g � i A �� r.� = O � .�.►��+ �-n.A �nNi � 4 o °°o �° ;a g m o � :o � 0 0 0 � c � o °o ° ''" �y m ;� a `� im < � o °o °� � � � a � � � . g � .. . 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W W W W � Z _o d S � � m $ o o � � b t � 0 0 � -s Q � � p d r. Cf ^ � . . ~ � � � . . . rn. N .� m+� � ,o o� WO+ �v�Scn�O t �u�i � O � � . � O Oe�O O � � 1 � °o °o °o $ o° n °� � � � � H► T N ff . N � . . �►�-� � . . 01 W Of � O O � p S • � � g °o s n , � m , � �,,► .� • o W o " I $ o � , o � i ro.c►°o _''v7i � � sa ydi � vc �• v-+ � s odo r'� � O m � ... N �o� N Cr � . . � � - . �7 N -1-�+� . � � F ' � � � C�O C O I D A � ! y � .. . . , y � . .. � . � . .. � . . � � • �� . �_�. �� - ? � � � �� , 4.1.4 BRIDGE Abbreviations used in the Bridge Program are: Br.R&R Bridge Replacement and Rehabilitation Funds CA County Aid CIB Capital Improvement Bonds FAU Federal Aid Urban MnDOT Minnesota Department of Transportation MSA Municipal State Aid PIA Public Improvement Aid - 63 - - � _ � m y. � � n_l C� � D � � D � D � v om�c �kn z � � � . � O mD �D � � .. ' 2 . NZ y� 9 Z � . . 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O. � � W W� � O �N 33 .N 'C I'Y 7 � � � � K � tTl W � N f�p � � 0 + I . � 0- fD � � � � I = . 0 � I � O n �O C7 0 � 1�0 . � �--� 7r ry � \ �s+ � � � es+ y I � a J � Q � � � . . N p � I N v O O O � G p� � � � a U' o m o o � o °o .`r°o °o C ; �a o W � W •m � � � � o�r t7i � � J W i c+ p�p � O O O O j j . U� � � � � O O O O p � � - C7 . C') � C7 C7 � � . �r , ►+ ►-� I i � � O � . O , IA D ! 1 i w = � .4 LIBRARIES Abbreviations used in the Library Program are: CIB Capital Improvement Bonds . _ R� _ � � / � J (� Q D . p � � � � D � � � y � � Z -� — D 2 � Z ~ m v � D X K r � O� y v � Z v? v;v m Z � . O ��' 2 2 2 7� � n L� "�m rr' C � ' . m 00 mOp � � ��n,p �D y � p � • � � Z�c m � O << tr._' 2 � 70 G>)v> . rt9i� v� � m m n �. ,� =1 N ZZ n'Z y ^�� ^' y D (� A r^L� mL� w mm mD p v� D < Dtn �cn m m� � � f% m . m < 3< ; � m m tr. R�.', L� m m� D � p < � � m Z m C D 2 (� -C . . �M � O �Z . O m � v' . > Z V. 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I I "q C� .0 1 D N � R R' • � N N n; a a I I y (� ; 0 , � C � � � �r � .s n c� rs n �v �.�, � 0 O ID fD X (D T '+ � n n; C - �„� C � � r+ o �.. v. . � 7J r � � a �.� C � �n y � '� . o � ! -�_ p �m r � �n � � � � � o r� o m � � - � [) � e� �. F -i c� � ro�c -t i < � c n a � �c � � }z � o� r.�c � z � a � rc � o c = �� , i R' �� , 7r -n= fL -n� r : ' �C 1"� rY 1n G ...� � �r .. . Pt v P1 (`. Ifl ��i � � !p � = rC � � �!�G tL fD tG fC C r^ . � � = v �+ = C I � V �� c c = � � n j ;a � .. d y �, r � �� - �`�. . n � G C . 7c —r -C � - I � .-� ! ,r' � _ ft � I C � G fL C �'�' ( I G` I � . � � �. c �^ Z � .. j - � - 'I _ � �c i � n �. F- � - � ��--r—' ;n I �' C C.+ C� r�, � ' c y �i t � ' ' ' . ' u � � �V% C C C C tv � i �- � � � C „G� C ~ � ; C_ I .1/ �,r� C� . G C C i .� . y I —� - cT ; r r � � �,j i D C' j D , i ` � ( y � i � � .0 a � G � I � � - O v � � I � � L L �, i c c c�• •. a � � � ITi i,,- ; c o c c rv ` . - � n � �: � c c c c c � �. � ; � 3 � � '� Z �T1 � � � � n ' r, r ¢ � � o I � ] L � � < i �� R� rr, v. � � I � � � � *' c D I � _ � � z m . ! � � - ' ( ¢ , � j � � N i I C v c � � , r— � I �' j i c ^ 3 K � I n r v I ! - , R j r � � � ! `c D � � � I � p +�r'- i v ✓' - — �� r � j Z � a 1; ( � . C � Ic ', u � r. � C � v ' i C � ' !� m I� . i i j � j I � � C � � I ' c i Ij i � I � I - , I , D � � � i i � ' � �.- � > , ; _ ' = -91 - 5.0 TECHNICAL APPENDIX The Technical Appendix provides: (1) financial data concerning proposed funding sources and their future reliability; and (2) more detailed information regarding the capital improvement projects proposed for each capital system. 5.1 FUND SOURCES This section examines the major financing sources for the 1984-1988 Program in terms of how they may be used, their past role in financing capital improvements, and their projected role for financing the next five years of transportation, sewer, park and library improvements. . 1 .1 CAPITAL IMPROVEMENT BOND Capital Improvement Bonds (CIB) are general obligation bonds issued by the City of St. Paul , the proceeds of which are expended for capital improvements. The bonds � have a ten-year term, and are repaid from a levy on property. Since 1979, these bonds have provided about $15.3 million for transportation, sewer, park and library capital improve- ments. This equals about 16% of total appropriations for this period. As depicted in Figure 5.0, capital improvement bonds have become a less significant funding source for the above-mentioned capital systems. Instead, the City is using CIB monies to pay for support system improvements, e.g. , the 1983 Capital Improvement Budget includes a $1 .6 million appropriation for City Garages Construction/Con- solidation and $1 . 1 million appropriation for Public Buildings Conversion to District Heating. The 1984-1988 PCI has programmed about $34.9 million of CIB monies which is about 23.9% of total capital allocations for the period. In order to comply with the City's debt reduction policy, Capital Improvement Bonds, together with Water Pollution Abatement (WPA) Bonds, cannot exceed a floating average of $10.5 million/year. The PCI slightly exceeds this amount; adding in the projected $19.7 million of WPA bonds equals $54.6 million over the five-year period, or $10.9 million/year. This illus- trates the current dilemma facing St. Paul , i .e. , its capital needs are outstripping available revenues. In order to maintain the City's infrastructure at a service level which supports both existing development and economic growth, St. Paul will have to develop alternative sources of public and private financing. - 92 - � FIGURE �� PAST APPROPRIATIONS BY FUND SOURCE, 1979-1983 , � (5 Year Total : $ 97,700,000) $ In Millions 30 Total 28 27.0 26 Other 1 .5 Total 16.5 24 MnDOT 9 .0 j _ ' _.. 22 i 4IPA ► � `'•9 i (Dela,y,�d 2G Total Total ' to 19�"3) 17.1 19 .8 i � Total _ � � 17.3 18 i Other Other 1 .0 Met.Pk 1 .0 Other Other 16 MnDOT 2.2 MnD(lT 1 .0 .2.1 1 .0 2.4 ev.Bd. Met.Pk 1 .8 MnDOT KEY 14 1 .4 WPA I�JPA 2.0 CIB Capital Improvement Bonds WPA 3.9 4.6 r1nDOT CDBG Corrrrnnunity Development 2.7 5.0 Wp Block Grant �2 5.9 MSA Municipal State Aid CA CA County Aid �.8 CA WPA Water Pollution 10 0.7 CA Abatement Bonds MSA MSA 0.7 Met.Pk. Metropolitan Parks 2.5 2.6 SA CA and Open Space 8 3.1 0.7 Commission Grant DB� . 0.7 MnD�T ��innesota Department 4.0 3.8 of Transportation E 3,6 Rev.Bd. Revenue Bonds CDBG 2.8 CDBG CDBG 4 CIB 5.6 0. 5 CIB 4.3 3.7 3.7 1 .8 2 CIB 2.4 CIB 1 .2 Year 1979 1980 1981 1982 1983 � - 93 _ FIGURE 12 1984-1988 PCI BY FUND SOURCE � • (5 Year Total: $145,982,830 ) - Total Total $ In Millions 33.3 33.1 32 the r Othe r 1 .9 2.0 . 30 Total MnDOT Total MnDOT 28.6 5.5 28.1 5.5 28 Ot he r 3.8 26 Othe r 2•4 Met.Pk. Met.Pk. 6•1 Total 24 MnDOT 6'� MnDOT 22•9 2.4 3.0 22 Other 2.0 Met.Pk. Met.Pk 20 3.7 4.5 MnDOT Z.3 PA KEY 18 3.6 WPA Met.Pk. WPA 4.7 2.4 CIB Capital Improvement Bonds 4. 1 CDBG Community Development 16 �A WPA b1PA Block Grant � � 3.1 4.1 MSA. Municipal State Aid CA CA County Aid 14 MSA �A 0.9 WPA Water Pollution Abatement Bonds 4 � 0.8 Met.Pk. Metropolitan Parks �2 CA MSA 5'8 CA and Open Space � � 3 � 1 .4 Commission Grant MSA MnDOT Minnesota Department 10 5. 1 CDBG MSA of Transportation � 5 4.1 Rev.Bd. Revenue Bonds CDBG CDBG 8 1 .6 CIB 1 .7 C�B� � 8.7 � • 5 CIB CIB 6 7.6 7 .5 CIB CDBG 6.6 2.0 q CIB 4.6 2 Year 84 985 1986 1987 988 �� 5.1 .2 WATER POLLUTION ABATEMENT BONOS Water Pollution Abatement Bonds (WPA) are general obligation bonds issued by the City of St. Paul , the proceeds of which are expended for the construction of sewage and stormwater facilities. The bonds have about a 20 year term, and are repaid from a levy on property. Appropria- - tions over the past five years have ranged from $2.7 million in 1979 to $5.9 million in 1983, and have comprised about 17.8% of total five-year appropriations. The major portion of WPA bond proceeds have been allocated to the St. Anthony Hill Sewer Rehabilitation Project (Thomas- Dale area) . In 1982, the $5.9 million appropriation for this project was pushed forward to 1983, allowing the Public Works Department to assess the extent of needed rehabilitation work. The Department is programming another $4.9 million in1984 and 1985 to cover the cost of related open-cut sewer work. The 1984-1988 PCI anticipates about $19.7 million of WPA expenditures, or about 13.5% of total capital improve- ment allocations for that period. As previously mentioned, the programmed combination of Capital Improvement and WPA Bonds exceeds the annual $10.5 million general obligation bonding limitation specified in the City's debt reduction policy. 5.1 .3 COMMUNITY DEVELOPMENT BLOCK GRANT The Corrmunity Development Block Grant (CDBG) Program is a federal program authorized under the 1974 Housing and Corrmunity Development Act and amendments thereto. The use of block grant funds is restricted to community development and housing projects that principally benefit low and moderate income persons, eliminate slums and blight, or meet an urgent need. St. Paul 's entitlement grant has decreased over the past years, from about $18.8 million in 1975 to $8.4 million in 1982. In 1979-1981, about $4 million/year was allocated to transportation, sewer and park improvements. In 1982 and 1983, such allocations dropped to $0.5 million and $1 .8 million, respectively. This decline was balanced by an increasing amount of CDBG monies appropriated for housing assistance and rehabilitation programs. -95- The City is expecting to receive $8.4 million in both 1984 and 1985, contingent upon Congressional re-authorization of the Community Development Act in 1983. Of the total grant, only _20� can be used for administrative purposes; the remaining 80%, or $6.72 million, is available for . eligible capital projects and programs. The 1984-1988 � PCI has programmed about $1 .6 million of CDBG expenditures/ year, with most of this money being used for street improve- ments. 5. 1 .4 MUNICIPAL STATE AID Municipal State Aid (MSA) is a state allocation to munici- palities for the construction, repair and maintenance of State Aid Street (SAS) system roads and bridges. Streets designated as part of the SAS system must be officially identified by the City Council , and meet the state-fixed mileage limitation. Any additions to the SAS system must be paired with deletions of other streets or bridges. Designated streets must additionally meet state criteria and receive state approval . One-fourth of the annual allocation must be expended for street � maintenance. In St. Paul, most MSA monies are expended for street and bridge improvements. Traffic signals and sewers (if draining a MSA-designated street) can occasionally receive MSA funding, but street lighting is ineligible. Figure 5.0 shows that MSA has been a growing resource over the past five years. It financed about 16% of total appropriations for that period. Likewise, MSA comprises about lb� of the 1984-1988 PCI. 5.1 .5 COUNTY AID County Aid (CA) is an appropriation from Ramsey County to the City of St. Paul for the construction, repair and maintenance of County State Aid (CSA) system roads and bridges. Similar to MSA, streets must be officially designated as part of the CSA system, and meet the fixed mileage limitation. Four percent of the annual appropria- tion must be reserved for street maintenance. In 1979, County Aid dropped from about $800,000 to $700,000, and has since remained at that level . The 1984-1988 PCI has programmed an average $1, 100,000 of County Aid expendi- tures per year. This amount probably exceeds anticipated revenues, and funding priorities will have to be determined in the biennial capital budgeting process. -96- 5.1.6 PUBLIC IMPROVEMENT AID Public Improvement Aid (PIA) is an annual appropriation from the City's General Fund Budget. These monies are used by the .Public Works Department to provide assessment relief to citizens who live on corner lots, and to pay for nonassessable portions of local street projects. � In addition, PIA is sometimes used to finance design and engineering studies for projects that will receive grants. Most grants only pay for the capital costs of a project; thus, PIA funds help finance the non-eligible project costs. Since 1979, PIA has been funded at $600,000/ year. This is estimated to continue over the next five years ; however, proposed changes in the City's Special Assessment Policy (adopted June 17, 1980 as Council File No. 275110) may necessitate an increase in PIA funding. 5. 1 .7 SEWER SERVICE REPAIR FUND The Sewer Service Repair Fund (SRF) is used to pay for unforeseen sewer repairs. The fund is financed by local dollars generated from user charges included in each municipal water bill . From 1976 to 1981, the SRF provided a modest ($150,000/year) , but reliable source of funding. In T982 and 1983, the Fund was increased to $300,000/ year, necessitating an increase in the Sewer Service Charge. This change will help the City to accomplish needed sewer repair work. The 1984-1988 Program estimates funding to remain at the $300,000 figure for the next five years. 5.1 .8 METROPOLITAN PARKS AND OPEN SPACE COMMISSION GRANTS The Metropolitan Parks and Open Space Commission sells bonds and then grants the proceeds to local governments for capital improvements (renovation/development) to regional parks within their boundaries. These grants have played a significant part in improving St. Paul 's six regional parks. Since 1976, the City has received nearly $19 million in grant funds. The 1984-1988 Program estimates future funding at $23.5 million, of which about $12.2 million is programmed for the rehabilitation of Como Park. This is a phased project for which the City expects to receive $2.4 million/year for five years. -97- .9 OTHER St. Paul uses grants and other less significant capital resources to finance capital improvements. �These include federal categorical grants (e.g., Federal Aid Urban for construction of improvements to Federal Aid Highway systems; Great River Road Grant for the development of the Great - River Road along the Mississippi River) ; state categorical grants (e.g. , Bridge Replacement and Rehabilitation Funds; Legislative Commission on Minnesota Resources Grants for the acquisition and development of local park and recreation facilities) ; transfers from the City's General Fund Budget; revenue bonds; and various sewer service credits. Together, these monies have ranged from about $3 million to $12 million annually. Since 1979, they have financed about 23% of total five-year appropriations for transportation, sewer, park and library improvements. They are anticipated to fund about 21% of the 1984-1988 Program. 5.2 RELIABILITY OF The City of St. Paul , like many local governments, is FUND SOURCES facing an increasingly uncertain funding situation for � capital improvements. Recent cutbacks at the federal and state levels has increased the competition for such funds, while decreasing the overall funding level . Moreover, local revenues are fast becoming insufficient to meet expenditures. Although it is difficult to forecast future revenues with a high degree of accuracy, the 1984-1988 Program is based on the following assumptions about future fund reliability. A. Capital Improvement Bonds/Water Pollution Abatement Bonds. These general obligation bonds rely on St. Paul 's local levy on real estate for repayment; therefore, they are fairly reliable. However, they must be used judiciously so as not to overburden city taxpayers. For this reason, the City adopted its debt reduction policy which limits annual bonding to a flaating average of $10.5 million per year. The 1984 -1988 Program is exceeding this figure by approximately $0.4 million/ year, thus necessitating difficult funding choices. - 98 - a B. Communit Develo ment Block Grant. This federal entit ement grant has decrease steadily in recent years. This trend is likely to continue, despite the fact that the Department of Housing and Urban Development (HUD) has asked for a continuation of funding at the Fiscal Year 1983 level . This will - place a greater strain on CDBG as a significant resource for funding capital impravements. In addition, the City is increasingly using its CDBG monies to help fund various housing programs. C. Municipal State Aid. This has been a growing resource, but this trend may be in jeopardy due to the potentially sizeable budget deficit facing the State of Minnesota. In 1981 , the State froze and/or decreased other state aids to local governments in order to balance the first year of its 1982-1983 Budget. Therefore, the overall funding level for MSA is somewhat uncertain. MSA is financed by a percentage of state gas tax and license fees. If these fees are raised and preserved for MSA, this funding source could actually increase. However, the City's share is partly based on its population. The recent decrease in the local population caused MSA funds to drop from $3.8 million in 1982 to $3.6 million in 1983. The City's population is likely to remain level or decrease slightly in the future. D. County Aid is also established at a minimum level by state law. The money is allocated to St. Paul from Ramsey County's Road and Bridge fund which is financed by property tax revenues. Each year, the City receives the minimum appropriation from the County. Unless the State raises the established minimum, the City's allocation should remain level . D. Metropolitan Parks and Open Space Comnission Grants are dependent on State bonding authorization and are repaid from a metropolitan tax on property. Since the grants reflect the Commission 's capital improvements program, the future of this resource is determined regionally, rather than locally. The Commission is facing mounting pressure from local governments to provide assistance for maintaining and operating regional park facilities. This issue may cause changes in the regional/local financing arrangement. _ Qa _ � ��./rd� fJ F. Other. These funds are less predictable than the above financing sources, primarily because they are dependent on federal and state budgetary decisions. Most of these monies come to the City as categorical grants (e.g. , Federal and State Bridge Replacement and Rehabilitation Funds; Legislative Commission . on Minnesota Resources (LCMR) Grants) ; therefore, they are outside local control . This will probably necessitate future adjustments in the PCI. Since these resources are continually threatened by federal and state cutbacks, local governments are likely to demand more reliable and controllable financing sources. This could lead to state-authorized local and/or metropolitan taxes whose revenues are tagged to categorical activities. - 100 - - . 5.3 CAPITAL SYSTEM 5.3. 1 STREETS PROGRAM DETAIL A. FINANCIAL BACKGROUND The following tables compare the differences in projected costs and funding between the 1984-1988 and 1982- 1986 Street Programs. 1984-1988 Proqram Costs (In Thousands) Year Source 1984 1985 1986 1987 1988 Total MSA 4,121 1 ,722 2,393 2,708 ?_,022 12,966 CIB 2,751 .7 1,834 2,372 1,500 1,727 10, 184.7 CDBG 1 ,120 1 ,400 1 ,�400 1,4�J� 1 ,4�0 6,720 CA 1 ,431 717 655 200 735.5 3,738.5 GRR 1 ,875.7 - - - - 1 ,875.7 PIA 600 600 600 600 600 3,000 ISSF 439 - - - - 439 TOTAL 12,338.4 6,273 7,420 6,408 6,484.5 38,923.° 1952-1986 Program Costs (In Thousands) Year Source 1982 1983 1984 1985 1986 Total CIB 495 637 356 675 435 2,598 CDBG 1,683 2,350 1 ,600 1,600 1 ,600 8,833 MSA 2,615 2,22b 1,093 1,516 2,271 9,821 CA 769 900 1,218 723 200 3,810 Other 239 1 ,942 1 ,865 853 430 5,329 TOTAI 5,8U1 8,055 6,132 5,467 4,935 30,391 At �38.9 million, the projected cost of the current program has increased by 28%, or about $8.5 million (unadjusted for inflation) . Part of this jump is due to the proposed five-year funding of the Residential Street Paving and Lighting Program at �14.5 million, compared to $8 million in the past PCI. - - 101 - The tables also show a shift in fund reliance. CIB monies now comprise 26� of the proposed program financing compared to only 8.5% in the past program. MSA funding is up about $3 million, although it still comprises about 33% of the program. Anticipated County Aid has remained steady. CDBG funding has decreased, - recognizing the City's growing use of these monies for housing programs. B. TECHNICAL BACKGROUND The current Street Program has been prepared somewhat differently than in the past. The 1982-1986 Program included the construction or reconstruction of lighting systems as part of the cost of street overlay projects. Due to the City's fiscal constraints, lighting work is now considered separately. The project list for Streets indicates improvements that merit consideration based on existing conditions and/or existing and foreseen traffic demands. In 1978, a comprehensive condition rating survey was done of all the arterial streets within the city. � For the purposes of this program, the 1978 survey was updated by an inspection of the 60 to 70 street segments rated as being in the poorest condition, as well as by spot checks of other known problem areas. These streets were then re-rated, combining traffic volume considerations with condition information. The cost estimates are approximations. Without extensive material testing it is difficult to determine whether full reconstruction or a simple overlay is necessary. Funding for such testing is generally not available until the City Council passes a final order for each specific project. C. PROJECT COMMENTS Reconstruction of Shepard Road. The August 1982 draft of the Metropolitan Council 's Transportation Policy Plan lists the segment of Shepard Road between Sibley Street and Randolph Avenue as a "high priori�ty deficient section" of inetropolitan highway due to its proposed status as the I-35E truck route alternative. The Streets Program allocates funding for the preparation of construction plans for this segment in 1986. The City anticipates receiving federal and state assistance for constructing the estimated $2.4 million project. _ i n� _ . Kasota Avenue. The proposed extension of Kasota Avenue from Gibbs Street to Snelling Avenue North is the only street in the "C" category, specifically C/2, Expand Existing Service to Developing Area. This project will improve vehicular access and service to Energy Park. The Public Works Department hopes � to secure $939,000 in Interstate Substitution Funds (ISSF) for the project, but is also programming $500,000 in MSA in case there is a delay or decrease in ISSF funding. Kasota Avenue and Shepard Road are the only two projects that require phasing over a multi-year period. The Residential Street Pavin and Li htin Pro ram RSPP makes up about 370 of the Street Program. This ongoing program involves the reconstruction of streets with all facilities, including pavement, curb and gutter, drainage, and ornamental lighting. D. EFFECT ON OPERATING BUDGET The five year program will not significantly affect street operation expenses. E. USEFUL LIFE OF PROJECT Street reconstruction has a useful life of 20-30 years. Bituminous overlays have a 10-15 year life expectancy. RSPP projects generally h�ve a 50 year useful life. F. CONSEQUENCES OF DEFERRAL/INACTION Deferral causes continued deterioration in existing roadways, thus resulting in less driveable roads and higher reconstruction costs in the future. Deferral also leads to poor drainage in certain areas. In the case of the Warner Road project, a delay in recon- struction could result in roadway failure due to erosion and undermining from the Mississippi River. _ in� _ . 5.3. STREET LIGHTING A. FINANCIAL BACKGROUND The following pair of tables compares the projected program costs between the 1984-1988 and 1982-1986 � ' Street Lighting Programs. 1984-1988 Proqram Costs (In Thousands) Year Source 1984 1985 1986 1987 1988 Total CIB 921 .4 1,374.2 551 .8 212 219 3,278.4 CDBG 100 - - - - 100 M SA - 30 - - - 30 TOTAL 1 ,021 .4 1,404.2 551 .8 212 219 3,408.� 1982-1986 Program Costs ( In Thousands) Year Source 1982 1983 1984 1985 1986 7ota1 CIB 530 630 600 700 630 3,090 CDBG 250 250 250 250 250 1 ,250 TOTAL 780 880 850 950 880 4,340 The 1984-1988 table indicates an overall reduction in funding for lighting projects. Moreover, the 1982-1986 table understated proposed expenditures since many lighting projects were included in the Streets section of the past PCI. The lighting element of street overlay projects now shows up in the Street Lighting Program, where it receives separate funding consideration. About half the lighting program is� associated with street improvements. Another third is earmarked for the 1985 purchase of Northern States Power wooden light poles. - 10 4 - • . , 6. TECHNICAL BACKGROUND Lighting projects are designed to bring city streets up to the standards of the I1lumination Engineering Society. . These standards vary depending on the characteristics of different types of streets (i.e. , residential , arterial , etc. }. There are a number - of inadequately lit arterial and residential streets that present pedestrian and vehicular safety problems. Despite limited resources, the Lighting Program seeks to alleviate these problems. C. PROJECT COMMENTS The Citywide Lighting Improvements program provides for the installation of lighting in underlit or unlit areas. It also includes the installation of midblock lighting, and any necessary alterations to existing lighting systems. These types of improvements are often initiated by citizen request. The 1982-1986 PCI included the conversion of existing mercury vapor street lights to a more energy efficient sodium vapor system. The current program includes a small allocation to complete the conversion. Extraordinary Lighting Maintenance is a continuing program to handle hazardous lighting conditions. Due to a reduction in the City's General Lighting Maintenance Fund over the past few years, some lighting systems have deteriorated. By providing funding for extraordinary maintenance (e.g. , repairing bad cable; surveying and repairing lantern-style poles; repairing and updating of service cabinets) , hazardous conditions can be prevented from occurring and routine maintenance can be handled by the City's General Fund Budget. Purchase of Northern States Power (NSP) Wooden Poles. The City currently pays a pole rental and maintenance fee to NSP. By purchasing the poles, the City expects to save $182,160/year--a payback period of 52 years. The poles have a useful life of 30 years. D. EFFECT ON OPERATING BUDGET The lighting program will have a minimal effect on operating costs, with the exception of the sodium vapor street light conversion project, which will produce significant energy savings. - 105 - . E. USEFUL LIFE OF PROJECT The Extraordinary Lighting Maintenance projects have a life span of 20 years. The other projects have an expected useful life of 25-30 years. F. CONSEQUENCES OF DEFERRAL/INACTION � It is desirable to coordinate lighting projects with those street improvements that involve more than bituminous overlays. Deferral allows an inadequate lighting system to exist on a newly improved street. Although limited by budgetary constraints, it is also desirable to correct poorly lit areas and make necessary alterations. A/1 projects must be implemented in order to alleviate ha2ardous conditions. - 106 - 5.3.3 TRAFFIC ENGINEERING A. FINANCIAL BACKGROUND The following two tables compare the 1984-1988 and 1982-1986 Traffic Engineering Programs. . 1984—1988 Program Costs (In Thousands) Year Source 1984 1985 1986 1987 1988 Total � CIB 320 620 320 3Z0 320 1 ,90U FED - - 1 ,400 - - 1 ,400 MnDOT - - 150 - - 150 MSA - - 150 - - 150 TUTAL 320 620 2,020 320 3�0 3,600 1982-1986 Proqram Costs (In Thousands) Year Source 1982 1983 1934 1985 1986 Total CIB 270 270 270 570 270 1,650 MSR 100 100 100 100 250 65C CA 20 20 20 20 ' 20 100 Other - - - - 1,550 1 ,550 TOTAL 390 390 390 690 2,G9� 3,95v At a five-year total of $3.6 million, the current program is about 9% below the estimated cost of the 1982 progra� (unadjusted for inflation) . It relies heavily on Capital Improvement Bond monies, a�d an Unspecified Federal Grant for financing. MSA has decreased as a significant fund source. - 107 - . �' 7 g 7 �.� � . , B. TECHNICAL BACKGROUND The Traffic Engineering Program includes traffic signals, and traffic channelization. New signals are installed based on the requirements of the State of Minnesota's Manual on Uniform Traffic Control Devices, which lists traffic criteria needed to justify - the installation of a signal . The signalization of an intersection can also be determined by City Council or Mayoral action. The design life of a traffic signal is 20 years, and most of St. Paul 's signals are 20 years old or more. The maintenance costs per intersection increase rapidly after 20 years have passed. The controllers, wire, and anchoring bolts are most prone to failure. C. PROJECT COMMENTS Citywide Signals. In previous years, new signal installations were funded through this program. Because new signals add to city operating costs, new installations are becoming infrequent. Therefore, this program emphasizes needed safety and efficiency improvements. In cases of necessity, new installations � are still funded from this program. Traffic Signal Enhancements is an ongoing program which revises existing traffic signals to conform to current standards. If the signal system is allowed to deteriorate, it causes motor vehicle fuel usage to increase, thus wasting energy and adding to driving costs. Computerized Signal System--Non-CBD is an extension of the downtown computerized signal system. The CBD system is expected to reduce gasoline consumption, traffic congestion and air pollution. It is anticipated that the Non-CBD program will provide the same results for the entire city. A specific fund source has not been firmly identified. It will probably include a mix of federal grant monies (such as Federal Aid Urban) and CIB matching funds. � Traffic Channelization is an ongoing program that provides funds for the reconstruction of various intersections to improve traffic flow and safety. Examples include: ( 1) a safety island for pedestrians, particularly at signalized intersections; and (2) turn lanes for left or right turning vehicles. - 108 - , � Basketweave Stop Sign Control is a five year residential signage program designed for safety and accident reduction. Tested in limited areas of the City, it has also provided more orderly traffic flow. Stop signs are placed at each intersection in alternate directions, resulting in a basket-weave pattern. - The program is a practical method for completing the signing of residential areas. The Street Name Sign program, which appeared as an A/2 project in the 1982-1986 PCI was not funded as a capital program. Instead, it was incorporated in the city's operating budget. Thus, it is not found in the current PCI. D. OPERATING BUDGET EFFECT The effect of the Citywide Signal Program on operating costs depends on the use of the funds. Replacement of an old controller will reduce operating costs by about 10%. In contrast, installation of a new signal can increase annual operating costs by 3-5%. The Computerized Signal Non-CBD project will also add about 1-2% to annual costs. The Basket-weave Stop Sign Control prooram is expected to add $10,000 per year to the City's General Fund Budget; however, the associated savings to motorists and pedestrians, in the form of reduced accident costs, are estimated at ten times that amount. ' E. USEFUL LIFE Sign refurbishment for stop signs is necessary about every seven years. Otherwise, the useful life of most traffic engineering projects is about 20 years. F. CONSEQUENCES OF DEFERRAL/INACTION Deferral of the Computerized Signal Control Non-CBD project would delay improvements in travel time, fuel conservation, and air quality. Deferral of the other projects would allow unsafe traffic conditions and unorderly traffic flow to continue. -109- . 5.. .4 BRIDGES A. FINANCIAL BACKGROUND The following tables detail the current changes in the Bridge Program. The major fund sources are Bridge Rehabilitation and Replacement Bonds (Br.R&R) and - MSA. Br.R&R are competitively awarded from the federal and state government. P1SA funds are also used to finance bridge repair and replacement, as well as to provide a match for Br.R&R grants that apply to bridges on MSA designated streets. 1984-1988 Program Costs (In Thousands) Year S�ur�e 1984 1985 ?98�6 19�7 1988 To�al MSA 754.4 2,804.4 1 ,000.2 2,933.2 1 ,902.9 9,395. 1 Br. R&R 503 1,224 597 3,263 2,316.5 7,903.�� MnDOT 0 3,521 797 797 - 5, 115 FAU - 752.3 1,410 ] ,410 - 3,572.3 CIB 464.8 275 452 683. 7 29.4 1,904.�' CA 222 0 160 744 635.5 1,761.5 PIA 25.6 - 46.2 17.8 3 92.fi TOTAL 1 ,969.8 8,576.7 4,462.4 9,848.7 4,887.3 29,744.� 1�3�-1986 Hroq►�a�r� Custs (in Thousands) Year Source 1982 1983 1984 1985 1986 Total MSA 1,247 836 1,710 2,928 1 ,269 7,990 BR. R&R 667 695 1,055 3,970 2,435 8,822 Other 102 819 523 3,006 599 5,049 TOTAL 2,016 2,350 3,288 9,904 4,303 21,861 - 1i0 - a The current program represents a 36% increase (about $8 million) over the previous program. However, over $6.5 million of this increase is dependent on non-city funding. For instance, the anticipated rise in MnDOT funds is tied to the $3.3 million Snelling and Marshall Bridges Replacement Project. The flow - of non-city funds is highly variable, causing large fluctuations and uncertainties in the program. Moreover, non-city funds are often subject to use restrictions, e.g. , Federal Aid Urban (FAU) can only be applied to bridges located on FAU routes. City-controlled funds are more predictable. There are no significant changes in the locally financed portion of the program. The City uses a portion of its MSA monies to help finance bridges on State Trunk Highways (MnDOT provides the major portion of project cost) . Locally-raised Public Improvement Aid (PIA) is used for supplemental needs and small projects that are not eligible for other fund sources. 6. TECHNICAL BACKGROUND The schedule developed for the Bridge Program is largely based upon an annual inspection and inventory process. Annual inspections, as required by law, are made of each structure, at which time the condition of all members and components of the bridges are noted and rated. Those items rated as "minor and in need of repair by maintenance forces" are taken care of by force account (city crews funded by the maintenance budget) , and those which are rated as "inadequate to tolerate any live-load, warrants closing bridge to all traffic" are taken care of immediately. The ratings for bridges in between these two extremes are determined by the inspector's experience and familiarity with the past condition of the bridge, his judgment as to the progression of any deficiencies and. his knowledge of the effect of any deficiencies on the safety of the bridge. Bridges are posted to carry a less than legal load if any deficiencies cannot be corrected. - 111 - • A complete inventory of all bridge structures is also performed during the inspection process. The inventory covers the age and geometrics of the bridge structure, types of routes served, traffic counts, available clearances, and other pertinent data. This information is forwarded to the Minnesota Department . of Transportation (MnDOT), which maintains a complete inventory of all bridges in the state. MnDOT uses the data to establish a sufficiency rating for each bridge. The ratings are determined by applying the collected data to standard formulas developed by the Federal Highway Administration. The ratings define the degree of need for rehabilitation or replace- ment of t�e structurP. More detailed inspections are then made to determine the extent of rehabilitation work required. The sufficiency ratings are also used to determine eligibility for state and federal grants for bridge rehabilitatio� or replacement. While a majority of the City's prograrr�ned bridge projects are eligible, the grant funds are so limited that only a few projects . can be expected to receive funding. Most grants also require a local match. C. PROJECT COMMENTS The Bridge Program contains 14 new projects and two project deletions (Transfer Road Bridge and Navy Island Bridge) . Seven projects, which have already received local appropriations, have been postponed due to the lack of intergovernmental aids. These projects are awaiting final approval and matching funds from the federal government. The Selby Avenue Bridge has also been delayed pending a decision on the Short Line Road. The Robert Street Walls project (B-1076), which appeared in the 1982-1986 PCI, is not listed in the current program. The City is in the process of negotiating the funding for this project with the state. Most bridge projects require street closures and traffic detours. These f actors often affect the scheduling of bridge projects. For example, the rehabilitation of the St. Clair and Grand Avenue bridges is prograrrranned for two different years, so that one bridge is available as a detour route while the other bridge undergoes repair. _ >> � _ . , D. EFFECT ON OPERATING BUDGET The St. Clair (B-1106) and Wheelock Parkway (B- 1084) bridge rehabilitation projects are expected to increase annual operating and maintenance costs by $7,800 and $3,700, respectively. These amounts represent at least a 2% increase in current maintenance � costs for these structures. E. USEFUL LIFE Most of the bridge work for A/1 projects has a life expectancy of 50 years. Deck resurfacing, which accounts for most of the A/2 projects, has a useful life of 15 years. The remaining A/2 projects, which involve deck replacement and other bridge repairs, should last about 25 years. F. CONSEQUENCES OF DEFERRAL/INACTION The following bridges are already posted for less than legal loads: Western Avenue Bridge, Raymond Avenue Bridge, Selby Avenue Bridge, and the Mississippi River Boulevard Bridge. These and other bridges in the A/1 category face further lowering of posted loads. While many potentially dangerous situations can be alleviated by lowering the permissible load on the bridge, the bridge is no longer serving its intended function. Deferral of A/2 projects will generally lead to continued deterioration and more extensive repair in the future. - 113 - ! � 5.3.5 SEWERS A. FINANCIAL BACKGROUND The following tables indicate a decrease of over $2.1 million (7.5�) in projected program costs (ur�- _ adjusted for inflation) . This reduction can be attributed � to the decreasing appropriation for the St. Anthony Hill Sewer Rehabilitation (Western Tunn21 ) project, which was primarily programmed in the past PCI. The current program contains three new projects and several higher-priced carryover projects. 1984-1988 Proqram Costs (In Thousands) Year Source 1�84 1985 1986 1987 1988 7ota1 WPA 4,115 3,627.5 3,150 4,681 4,117.6 19,691 .1 Ast. 990 353 776 628.5 889 3,636.5 SRF 300 300 300 300 300 1 ,500 CIB 275 840 154 92 10 � ' 198.6 TOTAL �5,680 5,120.5 4,380 5,701 .5 5�16.6 26, 1982-1986 Program Costs (In Thousands) Year Source 1982 1983_ 1984 1984 1986 Total Wpq � g,4g8 3,700 783 1,435 100 14,516 Ast. 82 1,200 789 1 ,967 899 4,937 SRF 300 300 300 300 300 1,500 �Zg 1 ,524 1,430 1,565 971 1,552 �'350 Other 350 - - " - TOTAL 10,754 6,630 3,437 4,673 2,851 28,345 - li4 - s The current program's reliance on CIB monies has lessened considerably. In actuality, most sewer projects are funded with Water Pollution Abatement Bonds. Over the past few years, the major portion of WPA proceeds have been allocated to the St. Anthony Hill Sewer Rehabilitation Project (Thomas-Dale area) . � In 1982, the $5.9 million appropriation for this project was pushed back to 1983, allowing the Public Works Department to assess the extent of needed rehabilitation. The Department is programming another $4,9 million in 1984 and 1985 to cover the cost of related open-cut sewer work. Assessments play a variable role in the program. The City's assessment policy governs how much benefiting property owners can be assessed. Generally, all first time construction is assessed at 100%, and repair or reconstruction is at a lower rate or not assessed at all . An exception to this policy is relief sewers, where first time construction costs are 20% assessed. The construction of relief sewers thus places a greater burden on city revenues than does first time construction of sanitary sewers. The increase and decrease in projected assessment revenue is tied to the type of sewer being constructed. B. TECHNICAL BACKGROUND Projects are identified by the City's Division of Sewers and Utilities. Major trunk links are inspected periodically, and deficiencies are noted. Reported backups, flooding complaints, and other problems are also investigated. These investigations form a basis for preliminary engineering studies of needed rehabilitation and improvements to specific sewers. The completion of two studies, the Metropolitan Waste Control Commission 201 Facilities Planning Study, and the Infiltration/Inflow Study, will also provide additional information regarding future needed improve- ments to St. Paul 's sewer system. � - 115 - � �. � C. PROJECT COMMENTS The scheduling of sewer projects in the PCI is based on the results of the above investigations. Smaller projects are identified annually and accomplished through the Major Sewer Repair Program. This program . is financed by user charges. In April 1976 a "Comprehensive Policy for the Ponding of Stormwater" was developed to provide relief to the city's overburdened sewer system. The annual Stormwater Pond Acquisition program was set up to implement this policy. The program identifies areas that can be used to catch and hold stormwater so that it does not flow directly into the City's sewer system, causing flooding and backups. These ponds allow the water to be gradually drained away. D. IMPACT ON OPERATING COSTS None of the sewer projects will significantly affect operating/maintenance costs, i .e. , an increase or decrease of 2% or greater in the annual cost of operating and maintaining the City's sewer system. E. USEFUL LIFE OF PROJECTS Most sewer projects have an 80 year life expectancy. F. CONSEQUENCES OF DEFERRAL/INACTION Deferral of the A/3 projects will generally permit the continuation of, or the potential for, sewer backups, local flooding, and combined sewer overflow. Deletion of the Major Sewer Repair Program will lead to increased maintenance costs (or system failures) in the future. In the Highwood Area, storm sewer installation is necessary to support new and proposed development. Otherwise, continued development will cause hazardous soil erosion and flooding during moderate to intense rainfalls. Timely land acquisition under the Stormwater Ponding Program will preclude losing these sites to other uses. . _ 11f� - i • . � � . . � � R 5.3.6 PARKS AND OPEN SPACE A. FINANCIAL BACKGROUND The following tables indicate a decrease of about $1 million in total projected program cost (unadjusted for inflation) . About 55% of the funding is expected . ' to come from Metropolitan Parks Open Space Commission Grants (Met. Pk. ) . Met. Pk. monies are used to develop � or rehabilitate regional parks within St. Paul . � The Metropolitan Parks and Open Space Commission � compiles a regional five-year program and then requests � bonding authority from the Legislature. Bond proceeds , are granted to the local government unit to implement � eligible projects within its jurisdiction. Therefore, � these grants reflect decisions made at a regional J rather than at a purely local level . Como Park Rehabili- � tatien is the most ambitious project utilizing Met. 1 Pk. funding. i i �he second largest fund source is Capital Improvement Bonds (CIB), which make up 35q of total program funds. The federal Urban Parks Recreation and Recovery (UPP.RR) Program is a tentative fund source. The 1981 funds for tk�is program were rescinded (unless alrzady under contract), and there were no appropriations for 1982; however, a small amount of money was left in for innovative grants. • 1984-1988 Proaram Costs (In Thousands) Year Source 1984 1985 1986 1987 1988 Total Met.Pk. 3,715 6,745 4,545 6,145 2,445 23,595 CIB 1 ,788 3,718 3,648 3,798 2,268 15,220 UPAP,R - 624 600 456 120 1,800 CDBG 300 78 275 57 645 1 ,355 ' MSA 192 192 192 192 192 960 LCMR - 78 75 57 15 225 TOTAL 5,995 11 ,435 9,335 10,705 5,685 43,155 1982-1986 Proqram Costs ( In Thousands) Source 1982 1983 1984 1985 1986 Total CIB 3,557 2,960 1,683 2,838 2,458 13,496 CO 761 221 1 ,310 270 951 3,513 Met.Pk. 5,715 5,445 3,545 6,14� 2,445 23,295 Other 648 1 ,541 777 822 291 4,079 TO�iAL 10,681 10, 167 7,315 10,075 6,145 44,383 . „ -, . �� y'��v . � . The 1984-1988 Parks Program includes 33 of the 49 projects listed in the 1982-1986 Program. It also contains three new projects within Como Park that seek CIB financing. An additional $600,000 in Met. Pk. monies is scheduled for the Como Park Conservatory Rehabilitation. Over $3.5 million in additional _ funds is projected for the Mississippi River Boulevard Rehabilitation project. The Citywide Tree Planting Program showed a decrease of $1 ,250,000. Excluding the above projects, the cost of most carryover projects increased by about $35,000. B. TECHNICAL BACKGROUND In compiling the Parks program, potential projects were identified from a number of sources. Neighborhood group requests, departmental staff assessments of deficiencies, and projects which would complement neighborhood revitalization efforts were all considered. Projects were also identified from recommendations in regional , citywide, and neighborhood plans. The projects were scheduled based on the need for . the improvement, the degree to which the improvem2nt contributed to neighborhood revitalization, and other city Comprehensive Plan and budget policies. In addition, the following departmental concerns were identified: 1 . Continuation of Previously Funded Project. Projects which were funded for design or construction in a previous year will receive priority for completion. 2. Coordination of Services. Projects which permit the coordination of services with other agencies will receive special consideration provided they are in compliance with other city policies. 3. Tree Planting. The tree planting program has been and continues to be a city priority, although the availability of adequate funding is becoming increasingly uncertain. 4. Distribution of Projects. Projects were distributed to ensure that improvements were not concentrated in any one area of the city. - 118 - . . � 5. Timing of Projects. Projects which must be coordinated with other improvements were scheduled for the appropriate year. � Potential sources of grant funds are identified for each project which may be eligible for such funding. . Estimates are given for competitive grants even though there is no assurance that these grants will be awarded. C. PROJECT COMMENTS The timing, phasing and funding for regional park and open space facilities is included in the Metropolitan Council 's Capital Improvement Program. The cost of rehabilitating and developing regional park facilities is covered by the grant monies; operating costs are the City's responsibility. In its 1982 and 1983 General Funds Budget deliberations, the City Council considered the closure of several recreation centers. While no closings were adopted, the issue is likely to surface again, given the conflict between 9rowing needs and limited resources. Therefore, coordination between recreation center rehabilitation projects and operating budget actions is necessary to insure that recreation centers are not rehabilitated and subsequently threatened with closure. D. EFFECT ON OPERATING BUDGET • Reduction of operation and maintenance costs was considered during the programming process for park and recreation projects. Most of the recreation center rehabilitation projects include energy conserva- tion measures and use of materials that will result in less maintenance. The only major projects which may result in increased operation and maintenance costs are those which are funded by the Metropolitan Council . A number of these projects involve major rehabilitation and new development of existing regional parkland, and are intended to increase public usage of these recreation areas. Increased use will result in higher operation and maintenance costs for the facilities. - 119 - � � 7 � �� . 5.2.7 LIBRARIES A. FINANCIAL BACKGROUND Libraries were not included in the last five year PCI. The Library Program is estimating future expenditures of just under $1 million, all of which are scheduled for 1984 funding. This figure does not represent � total capital spending, since the St. Paul Public Library finances many system improvements from private donations. Some important capital projects are not listed, since the Library intends to fund these projects from the proceeds of the 100th Anniversary Fund Drive. 1984-1988 Program Costs ( In Thousands) Source 1984 1985 1986 1987 1988 Total CIB 952.0 - - - - 952.0 TOTAL 952.0 - - - - 952.0 B. TECHNICAL BACKGROUND The proposed expenditure level for 1984 is somewhat . unrealistic; these costs are likely to be phased over a multi-year period during the City's upcoming budgeting process. However, at the time the list of projects was compiled, the projects were not programmec over the five years for two reasons: l . The list represents long standing problems for which maintenance has already been deferred; 2. It was difficult to give one project priority over the next as all projects are considered necessary and equally important. C. PROJECT COMMENTS The City's proposed Library Plan currently states that "Extensive renovation or repair of those libraries with circulation below 90,000 should be delayed until a decision is made relative to the continued use of such facilities." For this reason, there are . no examples of building needs in the Arlington Hills, Hamline, Rice Street or Riverview Branch Libraries. -120- . ' D. EFFECT ON OPERATING BUDGET Thirteen of the 21 projects represent savings in energy use. The Sun Ray insulation/window improvements deserve special attention in this regard. Energy savings for this project alone are placed at $10,000 per year with a payback period of less than nine - years. The two resurfacing projects will reduce patching and sealing costs. E. USEFUL LIFE OF PROJECT The fifteen A/2 projects have an average useful life of 33 years, ranging from 12 years for parking lot resurfacing to the estimated life of the structural building improvements. The A/1 projects have useful lives of 55 years and longer. F. CONSEQUENCES OF DEFERRAL/INACTION Hazardous conditions will continue to persist at those libraries requiring A/1 improvements. Many libraries will experience continued energy waste and/or more rapid deterioration. - 121 - � 1 � � � � CREDITS .'' � � . PAUL CITY Liz Anderson David Lanegran PLANNING COMMISSION *Clark Armstead Joseph Levy *Ralph Brown *David McDonell James Bryan *Joseph Pangal *Carolyn Cochrane *John Schmidt Thomas FitzGibbon Gayle Sumrners - Sam Grais Janabelle Taylor Sr. Alberta Huber *Adolph Tobler **David Hyduke *Robert Van Hoef Richard Kadrie Nelsene Karns **Chairman, Capital Improvement Program Subcomnittee *Member, Capital Improvement Program Subcommittee ADMINISTRATION AND James J. Bellus, Director of Planning and Economic Development POLICY DIRECTION Peggy A. Reichert, Deputy Director for Planning Allen Lovejoy, Principal Planner RESEARCH AND PLANNING Lisa Roden, Planner-in-Charge ' � Department of Public Works Roy Bredahl Bob Peterson Roy Grieder ponald Sobania Thomas Kuhfeld Kent Schonberger Division of Parks and Recreation Judy Barr Division of Libraries Kathy Stach David Klinkharr�ner _ »� _