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277507 WHtTE - CITY CLERK PINK - FINANCE � �'� CANARY - DEPARTMENT � COUflC1I t BLUE - MAYOR G I � O S A I N T PA U L File N O. � ��"°r e olution 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 WHEREAS, The Council of the City of Saint Paul anay, pursuant to Minn. Stat. §462 . 355, subd.. 3, adopt or amend a comprehensive plan or portion thereof after a recommendation by its Planning Commission; and WHEREAS, The Planning Commission has recommended adoption of the Program for Capital Improvement as a part of the City's compre- hensive plan; and WHEREAS, The following action by the Council of the City of Saint Paul is nat an implicit adoption of a comprehensive plan of 1963 or other portions thereof recommended by the Planning Commission; now, therefore, be it RESOLVED, That the Council of the City of Saint Paul does hereby adopt the Program for Capital Improvements as part of the City's comprehensive plan (a copy of which is attached hereto) , subject to such review by the Metropolitan Council as may be required by law. COUNCILMEN Requestgd by Department of: ' Yeas Nays Hunt Levine In Favor Maddox.�— McMahon B snowaiter __ A gai n s t Y — Tedesco Wilson Adopted by Council: Date OCT � �'o� Form Approve by i ttor Certified Y• •s by Council retar BY � Ap by May e +- �CT � � Appr d b ay fo ub issAsn.to Council UBUSHED OCT 2 4198� �� - � �'��'7 , : . _ _ ; . . � � . . - . _ _ , _ . . _ . . R- � ; - _ _ - , . . . . _ . ' June 9s 1981 _ - � . . , , � � . � � ,- _ ti ',.. Ceuncilman George McMahon _, , . - : � .-- ; • , ` ; . (�airman, Finance� Management � Personnel Gommlttae � � •- ' _ '�th Floor, City Hall � . . - - ,: ' ._ , --- Dear Council.s�ar� Mca�lahoas _ ,_ ;� � � . The City Gbuncil referred �to the Firiance��Management � Pers.onnel Committee Po� cansideratioa and for-recommendation, a resolution , - adopting the Program for Capitel Zmprovements as part oP the , City•s comprehenaiv�e plan, _ - : , . - , Yeiy truly y�ours, _ _ - , � - , � \ - - � . . • - - . � h 1 . . - � , . .. -. . � .. . - . ' ., 'f_.� . . _ � .. � ! ' � , , . . Albert B.<Olson , - - ; ' - , r. � . - • City�`Clerk. _ - - . �--' _ _J . - , � � . � _ - . , '� - - - . -. , . � ABO:la . , _ . , , , � - � . - � . . _ . - , . � r cc: , Pianniag Staff . _ ° ._ � , . 1 _ '� - - -_ - < � . . __.: _ ^ . -- _ � . . . . _ . _ , . . - . . . _ . _ _ � _ , . . ' �.� .. -=� _ � . . . ^ ,i . . . .} . � . . �. , , . � .. . _. , � . . '._ . . _ . ( . - , �. � .. � � .�. �' _ . . �. ^ � . .. . . '. �. � . . _ � —. �i: . _ - . � . ' ,�/" ��'.,, tJ�- - . . _ _ . _ . ' -- . .��. �. � � - -� . . - . — -- � - . . - _ ' , ._. - .. . .�r . .. _ . . - � — 'e i .. ' _ . , ". . � " . � ' _ � ' �i �� .. . . . •: � � - .>_. . .. . , � �. �� . . .;. , _ .. . . . . _ .. . . �- . r.. -� �, . . . <,� ' '.. _ ' :�.:- , _ -..;. �_ . . . . . . . . . _� . -- •� �� . . . .. . y . �� . � . . . � , . .-: . . .� _ .- . , .� . ., . .. . . . . . .. , ; . . _. t -. —. _' — • ' ; -, , . , . . . .. . . ,- . : '. �. . . . . . . . � . 1� . �. r�, .-� � . -;- � . .T'. ..r. �.�,-� � _� . - ' . . — �- _ .. . ._ .. � ' _ C ' , . . � _ �� . ._ _ _ � . . . '. .� .' '. . ��. _ ' �- . . . . � . .. __. ... .�, _ . . .. . ..,.._ .� . - � . . . . .. .. , , . ' . . ., s � . . _ t. . `-.� .,. -1. .. . .y.� . . _ . . -. ,. . .: �. ` `r._ � ` . � _ . . , � . .,-." � ... —_� �, .-'_ . . � .� , . ' . � _... - ' — . . . . . - a ,.. , . . �i _,j ��, �a� .� - � - , . � . : , . . ; . _ �-; , . �; - - . , `..y. . . �. � ' 1 .:' '4.' '� P. /� ' • :� . _ -. � . .. �� . - . ,� \�- ' , . . _ L�, _ i ♦ .. . _ . . �`1 �� . f � � 1 \ ` .. . G , _ 1. : ` • � Y ±� . . . . _ .� _' /, � _ _ "- _ _ ''. . _ . ( ' - - - _� - � . � - . 3Z _ - : , - . �-�`"�`�� GITY OF SAINT PA�Uf� � �°' i E.t�,;, �o� , '� OFPICE OF THE MAYOR _ 11711711{111 Y� . . � a� ,,,�,�� Q �"M,° �e.� �,�`� 34T CITY HALL ��;�� .�� SAINT PAUL, MINNESOTA 55102 GEORGE LATiMER (612) 298-4323 � �dAYOR �� . May 27, 1981 � l,�qy�$ City Council President Ron Maddox �''� • and f�1embers of the Ci ty Counci 1 /�'�1t� 7th F1 oor, Ci ty Hal 1 , �a�j �t St. Paul , Minnesota 55102 Dear Council Members: On May 22, 1981, the Pl�nning Commission held. a public hearinc� on the Program for Capital Improvements, 1982-1986. At the conclusion of the hearing, the Commission recommended adoption of the Program as part of St. Paul 's Comprehensive Plan. The Program for Capital Improvements , a requirement of the Metropolitan Land Planning Act, begins a new effort for St. Paul in organizing and planning capital improvements. It lays additional groundwork for the Unified Capital Improvement Program and Budgeting Process, and it has been coordinated with that process. ._.-_-�- The Program is the result of close cooperation between. the Planning Commission _ _ _ and the Department of Public Works and the Division of Parks and Recreation. In addition, the program has undergone a period of public review during P4arch . and April . Adoption of the Program by the City Council will complete the requirements of the Metropolitan Land Planning Act. The City's deadline for submission of our Comprehensive Plan to the Metropolitan Council is June 30, I9�1. � peggy Reichert, .Deptuty Director-Planning, and her staff v�ill be happy to �meet with yau to discuss the Program at your� convenience. Sincerely, e e Lati mer P�a Enc. GL:PJ _ __ _ ,. _... . ...... . .. . .. ._,., ._ _. ._. .. _...___. ...x . ._,...._ . _r , ...��-.�...�.�.,...,�..�. i �`}:�ss�? iyl ' �� ! � .;' 1�t�:�' �:, , � �.. ��• �. CITY OF SAI � AUL <,��` : e a DEPARTMENT OF PLANNING AND ECONOMIC DEVELOPMENT � wu um , � 6u �ui � �,�° "Q DIVISION OF PLANNING �`�m,,�• 25 West Fourth Street,Saint Paul,Minnesota,55102 GEORGE LATIMER 612-298-4151 MAYOR DATE: May 26, 1981 T0: Albert B. Olson City Clerk FROM: Patricia James`�j� Comprehensive Planning RE: Program far Capital Improvements On May 22, 1981, the St. Paul Planning Corr�nission adopted a resolution recom- mendin� adoption of the Program for Capital Improvements as a part of St. Paul 's Comprehensive Plan. Copies of the Program have been submitted to the Mayor with the request that he transmit them to the City Council for th�ir consideration. I am enclosing copies of the Program, the resolution, and the letter of transmittal to the Mayor. As soon as the t�1ayor has transmitted the Program to the Council , i am requesting that you place consideration of the document on the City Council 's agenda and that you notify me of the time and date. The City Attorney is beinc� asked to draw up a resolution of adoption for the City Council . If you have any questions , please ca�l me at 292-6232. Thank you. Enc. �O . � �� ' � �CiTY OF SAINT PAUL ' C:4 C1T!p,. ��~ �" �a DEPARTMENT OF PLANNING AND ECONOMIC DEVELOPMENT g,�� iiim Q_ .!� `��. DIVISION OF PLANNING ,... 25 West Fourth Street,Saint Paul,Minnesota,55102 GEORGE LATfMER 612-296-4151 MAYOR May 23, 1981 Honorable George Latimer, Aiayor City of St. Paul �. � 347 City Nall St. Paul , Minr�esota 55102 Dear Mayor Latimer: On May 22, 1981 the Planning Corrrnission held a public hearing on the Program for Capital Improvements, 1982-19$6. At the conclusion of the hearing, the Commission reco�nnended that the City Council adopt th� Progr.am as part of St� Paul 's Comprehensiv� Plan. The Program for Capital Improvements is �the final cha�ter of the Plan requir�ed under the Metropolitan Land planning Act. As you recall from your meeting with Allen Love�oy and Patricia James on May 18, it alsa begins a new effort for St. Paul in organizing and planning capital improvements. Enclosed are copies of the Program for Capital Improvements as adopted by the Planning Commission. Please forward eight of these copies to the City Council at yaur earliest convenience. _ Ste Paul 's deadline for submissian of its Comprehensive Plan is June 30, 19810 A1l parts of the plan mast have been adopted by the City Council by that date. If.you have any questions or need additional information I will be happy to meet with you. Sincerelvy � �s�� Peggy A. Rei chert Deputy Director, Planning Enc. PR:PJ:mh CC Albert B. Olson Edward Starr _ _�.� � :. ! - . �� /;� i ! city of saint paui pianning commission resolution file number 81-19 M�A�\I w�u�s�i7v� . .. . � . � � �: � � WHEREAS, the Program for Capita1 Improvements was developed as a portion of the Comprehensive Plan of the Ci,ty of St. Paul ; and WHEREAS, a public hearing was held on May 22, 1981 , at which the Planning Comnission considered .the recomnendation to amend the Comprehensive Plan � by adding to it the Program fo�, Capital Improvements; and ` WHEREAS, prior. to said hearing, a notice of time and place and purpose t of the hearing was published in the official newspaper of the municipality � ; at least ten days prior to May 22, 1981 ; and = s - P WHEREAS, at said public hearing the public, the Planning Division staff, � and Planning Co►rmission members were given the opportunity to corr�letely � discuss and review the Program for Capital Improvements; and e . WHEREAS, prior to the adoption of the entire Comprehensive Plan, which is � required by the Metropolitan Land Planning Act of 1976, segments of the � Plan will be adopted as•they are developed, and subsequently combined into _ a single, amended, and internally consistent Camprehensive Plan; NOW, THEREFORE, BE IT RESOLVED, that the Planning Commission for the � City of St. Paul hereby adopts as a segment of the Comprehensive Plan, ;, the Program for Capital Improvements, a copy of which is attached hereto and �ncorporated herein by reference; and BE IT FURTHER RESOLVED, that the copies of this Program be transmitted to the Mayor and the City Council of the City of St. Paul ; and ; . �' BE IT FURTHER RESOLVED, that the Planning Corr�nission recommends to the � !� City Council adoption of the Program for Capital Improvements as a segment of the Comprehensive Plan for the City of St. Paul , subject to Metropolitan Council review. m0�/ed b�/ Hyduke ��d b�/ Armstead _ in favor 1__9___ ; . � � a�il'1St � � � ; ,: , � ' � � � ��3 f��.F ( .� ' . . . . . . . . . . . . . .. .. 4 � � � .. � � � �� ' , .. . � . . 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GO< 'S `S '-+e•M ..+. �.p�..a.��{.. �+.$ .r N S• fp 1/f .{�..t. �¢ �.�.r Gt�D ly �� AAii � � ""S'S ��C3.�?� -�+�� cD p3� �r tD 'v O t'� ' e+ �N.�G e7 N '� � O n 'i7 O �G � N� f�E1 fy� �C� C �N� e�-h � � e+ � � tD ert' .r..•. �'Tl J . . �...� �� ' ,� , ... � . � � .,� J� �fy.. � , � . �� , . - . . .., . - � . � . � � +�. � . ,.. � .. . .�� . , . . . . � . . � . . . .. ��. �. . .w� .. .. . . . :: . ..�. � . ..� . �� . . . . . � . .. . . , . .��--� � � . . . � . . , . .�. � �. . .. . . . . � . . . . . . . � - . . . .� .. - ��-� .. . . . . .. . . r� D o D � � D � PRQGRAM FOR CAPITAL IMPROVEMENTS, 1982-1986 r�ay 19a1 � _ � INTRODUCTION Pur ose The major challenge St. Paul will face in the 19IIOs is balancing the needs and expectations of citizens with the � city's stable or shrinking financial resources. In the case of capital improvements , this challenge poses some major questions. What is the condition of our physical � facilities (infrastructure)? Now do we choose betweer needed projects? How can we do the most with the least? This plan begins to address these questions. Briefly, the Program for Capital Improvements (PCI) accomplishes � the following five purposes: � 1 .It complies with state law (Minnesota Statutes Section � 473.859); 2. It improves the Planning Corrmission's ability to � monitor Comprehensive Plan implementatian; 3. It helps to fulfill the intent of Capital Allocation � Strategy Policy S4 (Basic Systems) which is monitored by the Planning Commission during the capital budgetin� process; � 4.It aids in the cityvride coordination of capital improven�ents; and � S.It promotes improved management of St. Paul 's finances. Relationshi to Com rehensive Plan As part of the Compre ensive Plan s Implementation � Program, the PCI is a tool the Planning Comnission can use to ensure that the goals, objectives and policies developed in the Comprehensive Plan are reflected in the � city's capital program. It encourages implementation of the Plan's goals and objectives by the many different kinds of capital improvement projects according to a � classification system based on Plan policies. Relationshi to Unified Ca ital Im rovement Pro ram and Bud et Process UCI BP � ihe Planning Commission's role in the capital budgeting process includes : � 1 .Reviewing all budget proposals for conformance .with the appropriate chapter of the Comprehensive Pl�n; and � DIVISION OF PLANNING • DEPARTMENT OF PLANNING AND ECONOMIC DEVELOPMENT • CITY OF SAINT PAUI � CITY HALL ANNEX • 25 WEST FOURTH STREET, SAINT PAUI, MINNESOTA 55102 • TELEPHONE: 612-298-4151 � 2.Reviea�ing all budget proposals for conformance with the � Strateqy Policies of the St. Paul Capital Allocation Policy. In particular, Strategy Policy S4, Basic Systems, � addresses the need to systematically repair or replace the city's capital facilities (infrastructure) through departmental lony-range programs. The PCI is just such a � long-ranGe program for transportation, sewers, and parks. (Other types of capital facility repair and replacement projects are included in individual programs compiled by � operating c'eF�artments and submitted separately to the Planning Commission. ) In summary, the formal use of. the PCI in the Capital � Improv�ment Qudget Process is limited to the Planning Commissi�n's review of budget proposals for conformance with Strategy Policy S4. Its informal use as a source � of information regarding departmental plans can be much broader. It should be emphasized, however, that the PCI is only a plan. It is subject �:o change for many reasons � Sonie of these reasons are: l .The adoption of the Capital Improvement Budget, whicft means that those projects which did not get funded, � will have to be reprogrammed; 2,Another pro�ect may be discovered to need more urgent � attention; 3.There may be an unforeseen shift in financial resources � or 4.The activities of other levels of gavernment may require changes. � PCI CLASSIFICATION OUTLINE The Planning Conimission has developed citywide classifi- cation categories from Comprehensive Plan policy found in � the Implementation Strategy and from principles identi- fied in the Capital Allocation Policy. These categories cross departmental lines and begin to offer a means � to compare projects. The categories are outlined below: A.Maintain Quality Basic Services. Three sub-categories have been identified within this primary category, � 1 .Prevent Hazardous Conditions. 2.Systeriatically Repair/Replace Existing Service. � 3.Bring Developed Area Up to Basic Service Level . B.Maintain Support System. C.Expand Services. There are three sub-categories here � as well . 1 .Expand Existing Service in Planned Redevelopment Area � � � t 2.Expand Existing Service to Developing Area. 3.Provide New Service. � All of the projects in the PCI are classified in one of � these seven categories. PCI SUMMARY Service Systems Included � To comply with state law, the following service system components are included in the PCI: � Transportation--streets , street lighting, traffic engi- neering, and bridges. � Sewers--sanitary sewers, storm sewers, and ponding areas. Parks and Open Space--parks,playgrounds, recreation centers, parkways, trees, special use facilities. � Necessary support facilities for these services are also included. � Cost of PCI Total cost of the PCI for all five years is $134 million, � Each service service system's share of the total is shown below. � 21% SEWERS 46� � TRANSPOR- 33% TAjI�N � PARKS � � Table I shows the total cost per year for each of the three service systems. � Table I Cost Per Year: Transportation, S ewers, Parks (In thousands of dollars) Sys tem Yea r � 1982 1983 1984 1985 19fi6 � �ransportation 8,987 12,031 10,660 17,011 12,169 Sewers 10,754 6,630 3,439 4,673 2,851 Parks 1U,681 10,167 7,315 10,075 6,145 � � � Generally speaking, costs go down in the later years of '` the program. This is more due to the fact that it is s difficult to specify needed projects that far into the future than to a lessening of need itsel'f. Additional � projects will be identified as the program is revised. The following diagram shows the relative share of the total program allocated to each category in the classi- � fication scheme. The letter/number combinations refer to . the category outline described earlier. � - � A/1 27� � A/2 509� � C/2 3% ��1 � g� A/3 g 14% >1%� � The diagram shows that half of the program cost � falls into the second priority category, Systematac Repair or Replacement. The PCI project lists conform to the strategy of maintaining our infrastructure, a major � emphasis of the Comprehensive Plan as well as a PCI policy. PCI PROCESS There are two legal requirements that relate to the PCI � process: 1 .The program must be adopted by the City Council ; and � 2.It must be updated at least biennially. These two requirements, as well as the need to coordinate � the PCI with the established budget process have deter- mined the means by which the PCI will be reviewed, � adopted, and updated. Because the city has recently switched to a two-year budget process, the PCI will be revised in the "'off" years for the budget. This will mean the even-numbered years, beginning in 1982. The � process that will be followed is summarized in the � following table. �. � � � Tim;ng Step Actors August-5eptember Revise Pro�ect Lists City Operating,Departments � Review Priority Guidelines Planning Commission Citizen Group � Late September Review Preliminary List City Staff Planning Comnission Citizen Group � October-November Re��iew Oraft PCI Planning Comnission Citizens � Mid-December PCI Approved and Forwarded Planning Cormissiun � to Mayor and City Council Mid-January PCI Ado�ted as Part II City Council of the Capital Allocation � Policy Late January Sent to Metropolitan Council and Adjacen± � Municipalities for Information and Review The process described above cannot be followed by this � first PCI due to time constraints. The PCI ►vill , there-� fore, go through a review process similar to other plan elements: public review and presentations to district � councils followed by Planning Comnission approval and forH�ardi ng to the Playor and Ci ty Counci 1 . � � CONCLUSIONS This program only begins to address the uesti q ons raised , by the challenge of gro�ving needs and shrinking or stable resources. � � Condition of Infrastr c u ture The city is only ,now beginning to undertake a systematic � condition survey of the sewer system. This is a start, but much more information is needed about the condition of all capital facilities. With this knowledge the PCI � can act as a more accurate guide for capital im;�rovement decision-making. � Financing Capital Improvements � While improving our ability to determine what needs to be done, the city r�ust also begin to look at where the money to pay for the improvements will come from. Skills in � forecasting revenues �re needed, as is the ability to � � � identify alternative revenue sources. The future of � state and federal resources is in doubt, while St. Paul 's debt policy limits the amount of general obligation bonds that can be is$ued. These two factors could mean that, . after inflation, the financial resources for capital � improvements are declining in real terms. This decline will be occurring at the same time that demand for these resources is growing. The city needs to develop more � expertise in order to come to grips with this issue. P1uch remains to be done. Hawever, the process esta- � blished by this PCI begins to grapple with these ques- tions. As the city identifies the condition of its capital facilities and gains expertise in financial fore- casting, the PCI will become a more accurate plan for � rehabilitation and renlacemen't of St. Paul ' s infra- _ structure. � � � � . � � � � � � � . � . , � . � � � � PART II: � PROGRAM FOR CAPITAL IMPROVEMENTS 1982-1986 � � � � � HEARING DRAFT MAY, 1981 � ' � � � � � � � PLANNING DIVISION DEPARTMENT OF PLANNING AND ECONOMIC DEVELOPMENT 25 WEST FOURTH STREET � CITY HALL ANNEX ST. PAUL, MINNESOTA 55102 � � � � � TABLE OF CONTENTS � PAGE 1.0 INTRODUCTION 1 � 1.1 THE UCIPBP 2 1.2 PCI IMPROVEMENTS TO THE BUDGET PROCESS 2 1.3 PROCESS CHANGES 3 � 1.3.1 PROPOSAL IDENTIFICATION 3 1.3.2 EVALUATION OF PROPOSALS 4 1.3.3 PCI PROCESS 4 � 2.0 GUIDELINES 6 CAPITAL ALLOCATION POLICY 6 2.2 COMPREHENSIVE PLAN 6 ' 2.3 OTHER CONSIDERATIONS 13 � 3.0 FINANCIAL SUMMARY 15 3.1 SERVICE SYSTEM PROGRAMS 17 3.1.1 TRANSPORTATION 19 � 3.1.2 SEWERS 20 3.1.3 PARKS AND OPEN SPACE 21 3.2 CONCLUSIONS 22 � 4.0 PCI 23 4.1 TRANSPORTATION 26 � 4.1.1 STREETS 26 4.1.2 STREET LIGHTING 38 4.1.3 TRAFFIC ENGINEERING 41 � 4.1.4 BRIDGES 45 4.2 SEWERS 50 4.3 PARKS AND OPEN SPACE 59 � 5.0 TECHNICAL APP ENDIX 66 5.1 FUND SOURCES 66 � 5.1.1 CAPITAL IMPROVEMENT BONDS 66 5.1.2 WATER POLLUTION ABATEMENT BONDS 68 5.1.3 COMMUNITY DEVELOPMENT BLOCK GRANT 69 � • 5.1.4 MUNICIPAL STATE AID 70 5.1.5 COUNTY AID 70 , 5.1.6 SEWER SERVICE REPAIR FUND 71 S.1J REGIONAL PARKS 71 � 5.1.8 OTHER 72 5.1.9 RELIABILITY OF FUND SOURCES 72 5.2 SERVICE SYSTEM PROGRAMS 74 � 5.2.1 TRANSPORTATION 74 _ 5.2.1.1 STREETS 74 5.2.1.2. STREET LIGHTING 77 � 5.2.1.3 TRAFFIC ENGINEERING 79 5.2.1.4 BRIDGES. 81 - 5.2.2 SEWERS 85 5.2.3 PARKS AND OPEN SPACE 87 � CREDITS 90 � � � LIS'f OF TABLES AND FIGURES � �IGURE PAGE TITLE � 1-A 5 PCI Process 2-A 7 The Comprehensive Plan, the Program for Capital Improve- � ments, and the Capital Im}�rovement Budget. 3-0-1 15 Past Appropriations and Future Need: Transportation, Sewers, � Parks 3-0-2 16 Total Projection by Category 1982-1986 3-A 17 Projections by Need Cat�gory and Functi�n, 1982-1986 � 3-1-1 18 Relative Share of Capital Improvement Totals: Transportation, Sewers, Parks ' S-1 67 Past Appropriations by Fund Source, 1976-1980 TABLE PAGE TITLE � 3-1 19 Cost Per Year: Transportation, Sewers, Parks 3-1--1 19 Shares of Transportation Sytem Totals: Streets, Lighting, � Traffic, and Bridges 3-1-2 20 Transportation Component Cost Per Year, 1982-1986 � � � � � � � � i � � 1.0 INTRODUCTION � � This Program for Capital Improvements (PCI) is designed to be Part II of the "St. Paul Capital Allocation Policy." As such, the PCI will be adopted annually by the City Council and will help to guide the decisions made in determining St. Paul's � Capital Improvement Budget. The PCI accomplishes the following key purposes: � 1. It complies with state law (Minnesota Statutes Sec. 473.859) which requires a City Council adopted Capital Improvement Program for the functional areas of transportation, sewers and parks. � 2. It improves the Planning Commission's ability to monitor the implementation of the Comprehensive Plan. � 3. It clarifies Capital Allocation Strategy Policy S4, Basic Systems (see Part I) for the three functional areas included. � 4. It aids in the coordination of capital improvements. 5. It promotes improved management of the City's finances. � The relationship of the Capital Allocation Policy and PCI to the rest of the capital improvement budgeting process is discussed � in this chapter. � Chapter 2.0, Guidelines, explains the classification systern � which is used in compiling the PCI. Chapter 3.0, Financial Summacy, analyzes the amount of money appropriated over the past 5 years as well as the amount � needed to implement the proposed capital improvement program through 1986. � Chapter 4.0, Program for Capital Improvements, contains the full project lists arranged by functional area and classification category. � Chapter 5.0 Technical Appendix, provides more detailed financial and project information for those who wish it. The functional programs' impacts on operating and maintenance costs are � described in this chapter. � � � � � 1.1 THE UCIPBP A major challenge facing St. Paul in the 1980's is that the needs and expectations of citizens will outstrip the available � resources. This challenge must be met in all aspects of city government; capital improvements will be nd exception. The PCI, a five-year schedule for improvements to the city's trans- portation, sewer and park systems, will be a valuable tool � in addressing this problem. This section briefly describes the existing budget process, the next section the ways in which the PCI can improve it, and the third how the PCI process � will work. St. Paul has not done coordinated multi-year capital improvement � programming on a citywide level in the past. Instead, the city has developed the Unified Capital Improvement Program and Budget Process (UCIPBP) to determine on an annual basis which capital improvements to fund. The UCIPBP presently � produces an annual capital budget and a tentative four-year schedule of commitments. The annual budget is a commitment by the city to implement the budgeted projects. The four- � year schedule is merely a tentative commitment to ongoing programs such as Residential Street Paving, and multi-year projects already begun such as the Thomas-Dale Sewer. With � this schedule, the city identifies the longer-term financial requirements of single-year budget appropriations. The UCIPBP does not presently provide a long-range assessment � of needs; there is no comprehensive strategy to finance the needed improvements; and coordination among departments can be haphazard. In order to make the most effective use � of our available resources, these gaps should be filled. 1.2 PCI IMPROVEMENTS A first step in beginning to meet the challenge of addressing � TO THE BUDGET PROCESS growing needs with limited resources is to have a solid assessment of what the needs are. The city is in the process of system- atically determining the condition of the components of its � infrastructure (the service and support systems identified in the Capital•Allocation Policy, Figure 1). But even with the limited information now available, compiling a list of needed � improvements for the three functional areas of transportation, sewers and parks is a major step forward. The PCI is an attempt to identify and plan the level of expenditure � necessary to maintain the infrastructure components included. Since many capital improvements are paid for from the proceeds of general obligation bond sales, the level of municipal debt � can be better mana�ed. This is important because too great a level of general obligation debt can seriously reduce the city's ability to provide quality services to its citizens by siphoning � off needed tax revenues to pay for debt retirement. In addition, effective debt management reflects well on the city's bond rating, which determines the interest rates St. � Paul must pay on the bonds it issues. 2 � 1 � Finally, the PCI fosters project coordination. Having a readily available list of needs means that those projects which should be done together can be programmed so that they are done � concurrently. In the same way, a project which should precede another can be programmed to be completed first. This kind of coordination, both within a single department and among � departments, helps assure the efficient expenditure of the city's limited financial resources. � Thus, the PCI improves the present budget process by proposing a schedule which addresses the city's critical needs in a systematic and coordinated manner and assists in the better managing of municipal general obligation debt. � It is also important to realize what the PCI is not. A program is not a commitment to appropriate money for a particular � project in a particular year. A project that seems very important today may be seen as less important a few months hence; because other needs become � more pressing. This is particularly true of the later years of the PCI. The PCI is therefore a fluid document that makes an educated, but by no means final, statement of capital improve- � ment needs. Final decisions are only made when the capital improvement budget is adopted. j1.3 PROCESS CHANGES Having identified how the PCI will enable the current UCIPBP to become a more valuable tool in planning and budgeting capital improvements, the key question to be answered is how � much and where the•existing budgeting process will be altered. The entire UCIPBP is described in the "Process Guide" published by the Budget Section of the Mayor's Office. The PCI will � affect two steps of this process: proposal identification and evaluation of proposals by the Planning Commission. These changes will be discussed below. The process for reviewing � the PCI will then be described. 1.3.1 PROPOSAL IDENTIFICATION � Proposals are currently identified by citizen organizations (district councils, citizen groups, business organizations), public and private agencies, and city operating departments. This � step will be changed slightly in that the proposals from four divisions in the Department of Public Works and the Parks and Recreation Division of the Department of Community Services will also be identified in the current year of the PCI. � Since state law only requires that transportation, sewers, and parks projects be included in the program, this first PCI only considers these three functional areas. � � 3 � t The PCI will be adopted along with the Capital Allocation � Policy in January of each year, allowing the citizen organizations and agencies who identify projects to coordinate their proposals � with those of the city departments. The need for the various departmental proposals is explained in Chapters 2.0 and 5.0. Where there are differences of opinion regarding need or timing, the department and the group can attempt to work out a mutually � satisfactory resolution. This will mean that many of the conflicts in timing and policy � which are now brought to light during the evaluation of preliminary proposals can be either avoided entirely or resolved earlier. If after discussion a proposer still wishes to submit the project, � it will go through the same review process as all other proposals. The impact of the PCI on the proposal identification phase of the budget process is thus largely informational. As previously stated, the first years of the PCI will consist � of those projects which will be formally submitted as budget proposals during the next budget cycle. Because the PCI is � a fluid document which will be compiled approximately six months before proposals are submitted, provision must be made for amendments to the first year's projects in order to reflect changes in conditions which may arise. Circumstances � which may indicate a need to amend PCI lists include changes in the city's or department's financial picture, or the occurrence of a major emergency. These necessary amendments will � be submitted to the Planning Commission with accompanying explanations when budget proposals are submitted. The amendment will include an indiCation of all the adjustments in funding � needed to accommodate the change. The Planning Commission will evaluate the changes in light of the adopted PCI and its " priorities. � 1.3.2 EVALUATION OF PROPOSALS The second place in the UCIPBP where the PCI will have an � impact is the evaluation of proposals by the Planning Commis- sion. It's imp�ct on this phase is direct. The Commission is responsible for monitoring capital improvement proposals � for conformance with the Strategy Policies in Part I of this document. The PCI will be used to measure the conformance of transportation, sewer and park proposals with Strategy Policy S4, Basic Systems. � 1.3.3 PCI PROCESS � While the PCI is part of the "St. Paul Capital Allocation Policy", it is also a major method of Comprehensive Plan implementation and a legal requirement under the Metropolitan Land Planning Act. It must therefore undergo a review process similar to other plan documents. The PCI process is summarized in Figure 1—A. This process will be initiated in subsequent revisions to the program. Because of the circumstances surrounding the first � PCI, it's adoption process will resemble that of other elements of St. Paul's Comprehensive Plan. � 4 � � � FIGURE 1-A PCI PROCESS PROGRAM FOR � CAPITAL IMPROVEMENTS Appropriate � City Operating Mid-August through - Compiled/Revised Departments September � . Planning Commission CIB � ' Commit�ee October through - Reviewed � Mid-December � Planning - Public Review Commission � _ Mayor Mid-December Approved ac Recommended to City Council � � Late December through Mid-January - Reviewed City � Mid-January - Adopted with Part I, Council Capital Allocation Policy . � Late January - Forwarded to Metropolitan Council and adjacent municipalities for their � information and review � � � � � � 5 � 2.0 GUIDELINES � In order to effectively program capital improvements, it is � necessary ta provide guidelines to direct the identification and phasing of future projects. If the PCI is to fulfill the purposes of listing needs, coordinating projects, and managing municipal spending and debt, principles must be established � to balance identified needs and financial constraints. These general principles and policy guidelines can be found in Part I of this document (the.C�pital Allocation Policy), and in the � Implementation Strategy of the Comprehensive Plan. In addition to these major sources, this Chapter will also discuss other considerations that affect the projects in the PCI. � 2.1 CAPITAL ALLOCATION The Capital Allocation Policy portion of this document provides POLICY guidance for all appropriations of capital improvement monies. � All capital improvement proposals should be developed in accordance with these policy directives. The PCI is designed to apply directly to Policy S4, Basic Systems. This policy addresses � the need to systematically repair or replace the city's infra- structure through departmental long-range programs. The PCI provides such a long-range program in the functional areas � of transportation, sewers, and parks. The policy itself can be found on page 15 of Part I. 2.2 COMPREHENSIVE PLAN In addition to the policy direction provided in Part I, the PCI � provides a broad classification system for the various projects. The categories that make up this system are based on policies � and principles provided by the Implementation Strategy of the Comprehensive Plan. The Comprehensive Plan calls for meeting the challenge of � needs surpassing resources by focusing the city's resources in four key areas: - Maintaining city infrastructure; � - Expanding job opportunities; - Expanding housing opportunities; and � - Achieving greater energy efficiency. The PCI concentrates on the first area of focus: Maintaining City Infrastructure. This infrastructure is made up of the � physical facilities provided by the city, such as streets, sewers, public buildings, etc. The Strategy Policy section of the Capital Allocation Policy (Part I) also addresses the other three areas � as they relate to capital improvements. The relationship between the Comprehensive Plan focus and the UCIPBP's Capital Allocation Policy and PCI is shown graphically in Figure 2-A. � � � 6 � i � FIGURE 2-A THE COMPREHENSIVE PLAN, THE PROGRAM FOR CAPITAL IMPROVEMENTS, � AND THE CAPITAL IMPROVEMENT BUDGET � COMPREHENSIVE PLAN FOCUS_ � � MAINTAIN CITY EXPAND JOB EXPAND HOUSING ACHIEVE GREATER INFRASTRUCTURE OPPORTUNITIES OPPORTUNITI�ES ENERGY EFFICIENCY - � � ( I ( � UCIPBP - - - - ____ J � � PCI � CAPITAL ALLOCATION � � POLICY �- , � � CAPITAL IMPROVEMENT - BUDGET AND TENTATIVE SCHEDULE OF COMMITMENTS r � � � � � � � � � The Implementation Strategy of the Comprehensive Plan also � delineates the first broad principle for the city in Policy 4.2-1. 'fhis policy directs the city to maintain basic secvices before expanding services or providing new services. Maintaining � an adequate support system (see Capital Allocation Policy, Figure 1) is also necessary if quality basic services are to be provided. The following outline describes the categories in � the classification system in greater detail. In addition, the outline includes the criteria used to relate these general category descriptions to the kinds of projects identified for transportation, sewers, and parks. � A. MAINTAIN QUALITY BASIC SERVICES - Projects in this category are those which will enable the city to continue to provide a consistent level of quality basic services. � This level of service is defined in the appropriate chapter of the Comprehensive Plan and in the department's stated goals and objectives. � Within this primary category, three sub-categories have been identified. , :<, � 1. Prevent Hazardous Conditions. (A/1) Hazardous situations should be alleviated or prevented. Conditions which threaten life or safety clearly must be � taken care of first. Since emergencies by definition are not planned, most of the projects in this subcategory will be those which are required to prevent emergencY�`s. �� , . Streets: Where the physical and traffic characteristics of the street combine to create a situation with more potential � for high accident rates. For example, the combination of traffic volumes, narrow traffic lanes, and the poor surface of the gutter lane on Lexington Parkway creates an exceptional problem. � Lighting: Lighting which does not meet the Illumination Engineering Society guidelines for level of street lighting. � Traffic Engineering: Controllers on traffic signals that are 20 years old or older. (The design life of a traffic signal � is 20 years.) Controller failure creates hazardous situations. Brid es: � a. Structures unable to carry legal loads, whether due to deterioration or obsolete design. b. Structures having holes extending through the deck, or having surface obstacles that divert drivers' attention. � c. Structures with unsafe design, 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 programmed for repair or rehabilitation. g � r 1 � Sewers: Sewers where collapse or rupture is imminent. Sewers where land use or other factors have changed dramati- cally since initial construction, which could cause: sanitary � sewer backups into homes and businesses; combined sewer flooding; and dry weather combined sewer overflows into the Mississippi River. Facilities that do not conform to � federal and state safety regulations. Parks: Projects involving improvements or repairs which � will reduce the potential for accidents or safety problems. (Examples: rehabilitation of a recreation center which might otherwise have to be closed due to health and safety code violations; installation or repair of retaining walls � along park bluff areas.) 2. Systematically Repair/Replace Existing Service. (A/2) 1 Systematic major repair or replacerr�ent is the next category. Without systematic repair/replacement, the city will constantly be faced with emergencies. Needed improvements which � are not a threat to health and safety, but do require attention because the facilities are worn out or overused are identified in this category. � Streets: "Driveability" (i.e., driver discomfort and traffic volumes) is the concept which focuses the need for these improvements. Factors demanding attention include: � unstable sub-grade materials, broken and shifting concrete base, deterio�ating surfacing, as well as drainage problems with the curbs and gutters. � Lighting: Systems are replaced when: a. extensive repair is needed which approaches the cost of a new system; or b. the existing system is considered obsolete from an energy � point of view. Traffic Engineering: a. Traffic signals 20 years old or older. While the controller (see A/1) is the most important r, part of 'the signal, the other parts also need systematic replacement. b. Street name signs along arterials which need to made more visible to drivers. � Brid es: 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 to the city. Needs should be based on inspections, inflow and infiltration analyses, and maintenance records. � � � 9 � Parks: Rehabilitation or replacement of existing parks and recreation centers which do not require immediate � attention to alleviate hazardous situations. (Examples: renovation of a recreation center to improve energy efficiency, replace worn out or obsolete components, and improve usability; relandscaping of a park to improve appearance � and increase use.) 3. Bring Developed Area Up to Basic Service Level. (A/3) � Some developed areas of the city are not presently served at the basic level. These pockets of lower service levels have generally been identified in plan documents. They � should be brought up to the identified standard. Streets: Residential Street Paving Program, which is intended to provide paved streets, curb and gutters, and lighting � to residentia! streets suffering fcom the usual problems associated with oiled streets: relatively unstable surfacing and eroding boulevards. � Lighting: As roadways are repaved, the lighting is usually improved to minimum suggested levels for a street of that character as established by the Illumination Engineering � Soci et y. Traffic En�ineering: New signals installed based on criteria � in Minnesota's Manual on Uniform Traffic Control Devices, or where determined by action of the Mayor or City Council. Bridges; Reinforcing an existing bridge to allow increased � loads, i.e., a structure designed for passenger cars reinforced to allow truck loadings. Sewers: Upgrading of sewer capacities to handle increase � in stormwater runoff and flooding in areas of urbanization. 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/1.) New sanitary service to areas reliant on septic tanks. New services which alleviate ' stormwater problems in special circumstances. Parks: Projects involving acquisition or expansion of facilities � in areas which are identified as unserved or underserved in the Parks and Recreation Plan. (Examples: acquisition and development of a passive park in an area which has � no open space within 1/2 mile; construction of a recreation center at a site which has no building.) � � � 10 � � B. MAINTAIN SUPPORT SYSTEM (B) � Maintaining what we have also requires an adequate support system. Keeping the city's infrastructure in good condition to provide adequate services is a major role of city government. � This cannot be done if the physical backup facilities are inadequate. Ensuring the existence of this system is, therefore, very important. Projects in this category should be carefully evaluated to ensure � that they bear a direct relationship to service delivery. Figure 1 in Part I defines the city's Support System for all PCI functions. This system includes administrative offices, � communication facilities, storage facilities, training and educational facilities, and repair and maintenance facilities. � C. EXPAND SERVICES Expansion of services is the last category. However, this does not mean that infrastructure services will never be expanded. � The city does not remain static. Changes occur and new opportunities arise. Judicious expansion of services can take advantage of those opportunities which improve St. Paul's quality of life. In some cases, expansion of services is advisable to solve serious I problems, such as erosion. Because of the limited availability of funds, improvements of this type are as a general rule, identified as of lower importance than those which maintain � our existing infrastructure. There are three subcategories within service expansion: � 1. Expand Existing Service In Planned Redevelopment Area (C/1) When the city knows where the need for services is going to grow, this new level of need should be met beforehand, , so that service is not interrupted. This kind of expansion also improves the likelihood that the redevelopment will be successful. � Planned redevelopment areas have been indicated in the Land Use Plan. The Energy Park area has had the most � extensive planning so far. In addition, the following have been identified for each functional area: Streets: None � Lighting: Improved or expanded lighting to meet minimum levels is routinely provided in these areas. � Traffic Engineering: Expanding a service citywide. � Brid es: None. Sewers: Providing adequate capacity for proposed redevelopment of a higher intensity than the previous development. Storm � and sanitary sewer separation in areas now served by cambined sewers. � Parks: None ' 11 � 2. Expand Existing Service to Developing Area. (C/2) Expanding services to developing areas of the city is the � next subcategory. While St. Paul is essentially a mature city, there are still some areas where land is undeveloped. These areas are not yet served by full city'infrastructure � services. Since most of these services can be provided through assessing benefitting property owners, these kinds of improvement initially place less strain on the city's capital resources, although maintaince costs will increase. � Streets: These services 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 on new streets and developments are � at the discretion of the developer. Public Works priority for these areas is low. Traffic Engineering: Providing new signals where increased � initial development creates the need, based on the Manual on Uniform Traffic Control Devices. , Brid es: None Sewers: Storm and sanitary service to the Highwood area. f Special study for the proper design and management of sewage and stormwater in large developing areas. , �Parks: Not applicable (see A/3). 3. Provide New Service. (C/3) � Providing a new service is the last subcategory. Both th� initial cost of construction and the cost of maintaining the new service dictate that new services only be provided in very special circumstances. � Streets: No new services anticipated. Lighting: None. , Traffic Engineering: None � Brid es: None. Sewers: Providing outlets for clearwater discharge from � industrial or commercial uses, primarily via stormwater sewers. New storm and sanitary sewers serving areas of combined sewers where capacity is not presently a problem. � New relief sewers that will reduce treatment costs by removing flow from the treatment stream. Parks: Projects which require development of park and � recreation facilities not now offered in the city and which require additional staff and maintenance by the city. (Example: constructing a handball facility.) � 12 � � Generall s eakin these cate ories are listed in order of Y P g� g importance as determined by existing city policy statements. � That is, projects in the first category, Maintain Quality Basic Services, are in general more important than those that expand services. Accordingly, the PCI recommends that emphasis � be placed on the first category. However, it must also be emphasized that the PCI assumes � that all projects listed, no matter what their classification, are of value to the city. Projects which are of questionable value have not been included. For this reason the PCI does not recommend or assume that all projects listed in the first � category should be budgeted before any of those in the other categories. � Finally it must must be remembered that the PCI, in trying to bridge the gap between broad policy considerations and specific projects, overlooks many of the details that make � one ro'ect (as opposed to one category) more important than another. Determining project importance on this scale is the role of the budget process, not the PCI. The CIB Committee and its task forces are set up to examine each project in detail � and to determine its relative importance. � 2.3 OTHER CONSIDERATIONS While the categories outlined in the previous section provide major guidelines for the PCI, there are other considerations that may affect the timing of a particular project. These � considerations will be discussed in general here. Specific projects which meet these criteria are covered in Chapter 5.0, the Techincal Appendix. � A. PROJECT COORDINATION In order to take advantage of one of the major assets of capital improvement programming, coordination, it may be necessary � to schedule a less important project sooner than would normally be the case. For example, if a much needed street repaving is scheduled before a less important sewer project, it would be advisable to reprogram the sewer work so that it is done � before the street is repaved. B. AVAILABILITY OF FUNDING � The city should take advantage of special opportunities that sometimes arise. If funds become available for specific kinds of projects, these projects should be timed to take advantage � of the funds. However, it is not city policy to go after any and all special funding opportunities. The project must help to meet an identifiable need of the city. , C. CONTINUALLY POSTPONED PROJECTS There are some projects which are needed but, due to the press of other more urgent needs, are continually postponed. � There may therefore come a time when these projects are given a higher priority. These kinds of projects will need to be given specific case-by-case justification. � � 13 � D. SPECIAL CASES � There are some kinds of projects which by their nature cannot be programmed with a high degree of accuracy. Specifically in the transportation function, construction of skyway bridges � and parking facilities are two such project types. While these facilities are important to the city's well-being, they depend to a large extent on actions of the private sector. As other departments are brought into the PCI process, these kinds � of projects will be included when possible. Other capital improvements are not included in the PCI because � they are financed by agencies outside the city. The St. Paul Port Authority, for example, was established as an independent, quasi-public agency by the State Legislature in 1929. Formal ties to the city government include the following: the Port � Authority Board is appointed by'the Mayor and approved by the City Council; two members of the Board must be City Council members; and the City Council must approve all sales � of bonds issued by the Port Authority. Where Port Authority projects are known, they will appear on the appropriate PCI lists. � In addition to the Port Authority, other agencies whose projects will be listed for informational purposes when appropriate include Independent School District 625, the Metropolitan � Council, Ramsey County, and the State of lbtinnesota. � � � � r � � � � � �4 I � 3.0 FINANCIAL SUMMARY � This cha ter be ins to develo a strate to finance the PCI. P g P gY It does this by identifying each function's past•level of appro- � priations as well as anticipated future needs. It is important to know how capital improvements have been financed in the past before assumptions are made regarding future financing. � An examination of past appropriations shows how the city arrived at its present situation. It provides a point of reference when reviewing the proposed program. The patterns that develop from this chapter can be used to plan future strategy � by identifying those fund sources which seem fairly dependable as well as those which show a great deal of variation. These trends provide the context for.the guidelines discussed in the � previous chapter and the programs suggested in Chapter 4.0. The first section of this chapter discusses past appropriations � and projected cost by the functional service system; the second section draws conclusions and looks to the future. The figures in this chapter are taken from the adopted Capital Improvement Budgets for the years 1976 through 1980 and from the project � lists in Chapter 4.0. More detailed information can be found in the Technical Appendix. � Figure 3-0-1 shows total appropriations for the years 1976 through 1980. It also shows the projected need for the five years of the PCI. This table gives a very broad picture of 1 the city's history of commitment to its infrastructure. It also shows the need to m�intain and strengthen that commitment. FIGURE 3-0-1 PAST APPROPRIATIONS AND FUTURE NEED: � TRANSPORTATION, SEWERS, PARKS Past Appropriations Future Need � 1976 $ 16,934,000 1982 $ 30,442,000 1977 18,574,000 1983 28,828,000 � 1978 22,225,000 1984 21 ,414,000 1979 �16,984,000 1985 31 ,759,000 1980 31,457,000 1986 21 ,165,000 TOTAL $105,483,000 TOTAL $133,588,000 � These figures show a projected future need that is 27% more than the amount appropriated over the past five years. However, � the average cost of the proposed program is less than the cost of the 1980 budget appropriations. Since the issue of maintenance of our basic infrastructure is a relatively recent concern, it ' rnay be that the 1980 appropriation is more realistic than appropri- ations for earlier years. � � � 15 � In examining the Future Need, it should be also noted that � some overprogramming of fund sources is reflected there. This is due to the fact that the UCIPBP allocates monies among � all participants in the budget process, not only those included in the PCI. Since all project proposers compete for some of the same financial resources (i.e., Capital Improvement Bond monies), the actual level of appropriation cannot be accurately � forecast, and total requests may exceed available resources. Another factor to be considered is that the the city's debt � policy limits the amount of general obligation bonds the city can issue each year. This policy, adopted by the City Council on January 30, 1978 as Council Resolution No. 270479, seeks to contro! St. Paul's level of bonded indebtedness and bring � it to a reasonable level. This policy means that the city cannot accomplish all of the needed capital improvements simply by selling more bonds. The issuance of bonds is limited to � an average of $10.5 million annually through 1985. A continued high rate of inflation will also limit what can � be done, since it will take more dollars to accomplish the same amount of work. Since the programs' anticipated costs have been figured in constant dollars, little if any increase in real spending is being projected. In all likelihood, tough choices � will have to be made among the many projects included in the PCI as the city attempts to do as much as possible with current or shrinking resource levels. The classification system � devised by the Planning Commission may be helpful in this regard. Figure 3-0-2 shows the estimated cost of the suggested program according to the classification categories. It shows � which categories the PCI emphasizes and which receive less attention. FIGURE 3-0-2 TOTAL PROJECTION BY CATEGORY 1982-1986 � A. Maintain Quality Basic Services ' l. Prevent Hazardous Conditions 2. Systematically Repair/Replace Existing Service 3. Bring Developed Area Up to Basic � Service Level A/1 B. Maintain Support System 27% � C. Expand Services A�2 1. Expand Existing Services in Planned 50% , • Redevelopment Area C/2 2. Expand Existing Service to Developing Area 3� �/1 3. Provide New Service 6� A/3 B � 14% � >1% � 16 � ! This chart shows that over three-quarters of the total amount � would be used to finance projects in the A/1 and A/2 categories. Fully 91% of the projection would be allocated under the general heading of "Maintain Quality Basic Services". These proportions I show that most of the emphasis in the PCI is'on maintaining existing facilities through systematic repair or replacement. This emphasis is consistent with other city policies as well � as with the intent of the guidelines in Chapter 2.0. Future revisions to the PCI will examine these proportions to see if they adequately reflect the City's needs. � Figure 3-A shows how each functional area perceives its needs in terms of the categories. This perception reflects the nature of the function as well as the age and condition of the system � it oversees. FIGURE 3-A PROJECTIONS BY CATEGORY AND FUNCTION, 1982-1986 � CATEGORY FUNCTION 1 Transportation Sewers Parks A/1 38% 44% --- � A/2 36% 5% 97°6 A/3 1696 31% B --- --- 1% C/1 10% 4% 2% � C/2 =__ 16% ___ C/3 ' � The transportation function emphasizes systematic repair and alleviating hazards. Sewers, on the other hand, puts most of its program into alleviating hazards and providing basic � services to developed areas of the city. The parks function addresses systematic repair and replacement almost to the exclusion of all other categories. � While the individual functions vary, they are still following the overall policy of maintaining what we have before expanding services. � 3.1 SERVICE SYS"fEM This section examines the transportation, sewer, and parks � PROGRAMS programs. P� look at each system's share of the total appropriated over the past 5 years as well as the projected cost of the PCI begins the discussion. The charts in Figure 3-1-1 show the relative proportion of each service system (transportation, , sewers, parks) both with previous allocations and in the proposed program. It shows where the city's emphasis has been in relation to these infrastructure features and whether or not the PCI � changes that direction. � � 17 ' FIGURE 3-1-1: RELATIVE SHARE OF CAPITAL IMPROVEMENT � TOTALS: TRANSPORTATION, SEWERS, PARKS � 1976 - 1980 � 24, � 50% SEtJERS TRANSPORTA- � TION , 26, � PARKS � ' , � 1982 - 1986 / � / 21°� � SEWERS 46% TRAN � SPOk- 33% rATION � PARKS � � The proportions remain roughly the same for both past appropriations � and the future program. It is not known at this time how well these proportions reflect true need. This determination will have to wait until the condition of all of St. Paul's infrastructure � � has been examined. 18 � � � The cost per year for each of the proposed programs is shown in the following table. � TABLE 3-1 COST PER YEAR: TRANSPORTATION, SEWERS, PARKS , �in thousands of dollars) ' S stem Year 1982 1983 1984 1985 1986 � Transportation 8,987 12,031 10,660 17,011 12,169 � Sewers 10,754 6,630 3,439 4,673 2,851 Parks 10,681 10,167 7,315 10,075 6,145 � Estimated costs generally go down in the later years of the PCI. This is not unusual, since it is difficult to identify specific projects five years into the future. In addition, as capital � improvement budgets are adopted, those projects which did not receive appropriations must be reprogrammed. This creates shifts and readjustments all through the program and will also � increase the costs estimated for the later years of the PCI. � 3.1.1 TRANSPORTATION This service system includes streets, street lighting, traffic engineering and bridges. These four activities have accounted for 50% of previous capital improvement appropriations and ' are presently planned to constitute 46% of the total PCI. Major sources of funds anticipated for transportation are Municipal State Aid, Community Development Block Grant, County Aid, � and Capital Improvement Bonds. (These fund sources are described in Section 5.1 of the Technical Appendix.) Table 3-1-1 shows the breakdown of the components within the transportation � system. _ _ TABLE 3 1 1 SHARES OF TRANSPORTATION SYSTEM TOTALS: STREETS, LIGHTING, TRAFFIC, AND BRIDGES � SERVICE 1976 - 1980 1982 - 1986 COMPONENT % % ' Streets 44 50 Lighting 4 7 Traffic Eng. 4 7 � Bridges 48 36 � 19 t � The PCI as'it is now constituted, shows a drop in the relative proportiQn of the bridge program, with increases in the street, � lighting, and traffic engineering programs. It is important not to overestimate the significance_of this shift, since the PCI is subject to revision and since budget appropriations will , not automatically mirror these percentages. Still, as more information on infrastructure condition becomes available, it will be important to monitor these figures so that the PCI � reflects these needs. The cost per year for each component, in the Transportation program is displayed in Table 3-2-2. More detailed breakdowns , are available in the Technical Appendix. TABLE 3-1-2 TRANSPORTATION COMPONENT COST � PER YEAR, 1982 - 1986 (in thousands of dollars) YEAR j SERVICE 1982 1983 1984 1985 1986 � COMPONENT Streets 5,801 8,055 6,132 5,467 4,936 � Lighting 780 880 850 950 880 Traffic Eng. 390 390 390 690 2,090 Bridges 2,016 2,706 3,288 9,904 4,263 � Most of the sub-programs in the transportation system have maintained a fairly consistent level of cost over the years. Those years in which a dramatic increase is noted reflect specific � grants that are anticipated in those years. 3.1.2 Sewers � The proposed program for sewers comprises 21% of the total estimated program cost. This is down from the 24% allocated � to sewers in the years 1976-1980. The major past and projected resource for sewers is Water Pollution Abatement Bonding. Playing a lesser role are Capital Improvement Bonds, Community Development Block Grant, the Sewer Service Repair Fund, � and Assessments. The sewer system is presently being surveyed to accurately � determine its condition. When this survey is completed, it will have a significant impact on the sewer program as well as on the remainder of the PCI. Whether or not it will show the need for a significant increase in expenditures for sewers � remains to be seen. As it now stands, this is the estimated cost per year of the sewer program (in thousands of dollars): 1982 1983 1984 1985 1986 � 10,754 6,630 3,439 � 4,673 2,851 � 20 � 1 � 3.1.3 Parks and Open Space From 1976 to 1980 Parks appropriations frorra all fund sources � comprised 26% of total capital improvements. This percentage increases to 339�6 for the next five years. Much of this increase is for the rehabilitation of Como Park. The Parks and Recreation Division has reviewed the condition of their facilities and � has arrived at a program that addresses basic needs. As it now stands, approximately 7% of the anticipated program will come from the "Other" category. A major question for � the parks program is thus the future of the grant programs • that constitute that category.. The two major sources are Capital Improvement Bonds and Community Development � Block Grant, followed by the Regional Parks grants. The estimated cost of the projected parks program is shown below (in thousands of dollars): i1982 1983 1984 1983 1986 � 10,681 10,167 7,315 10,075 6,145 � � � � � � � � � � � 21 � 3.2 CONCLUSIONS What conclusions can be drawn from the foregoing discussion? � Two things are clear. First, a condition survey of all the city's infrastructure is badly needed. This study will•enable city decision-makers to compile a PCI that is a more accurate � reflection of the need for rehabilitation. A beginning is being made with the sewer system. The parks system has also been studied. However, much remains to be done. The second conclusion is perhaps not so obvious. If St. Paul � is to begin to program its capital improvements as effectively as possible, all service system and support system components � as defined in Figure I of the "Capital Allocation Policy" must be included. This PCI includes the majority of facilities, but the Police and�Fire departments as well as the remainder of the Community Service Department need to be added. This , addition is planned for the next revision af the PCI in 1982. A final co�nclusion to be drawn is that the city needs greater � expertise in the area of capital improvement programming. Fiscal analysis skills that can be used to project resource levels and to try to identify new financi�l resources are needed. � In addition, since the PCI cost projections are in constant dollars, the actual cost of this program will have to be revised to reflect changing financial conditions. Inflation will probably raise costs, while resource levels will remain more constant. � Therefore the city will actually have less "purchasing power" with which to do the needed work. This situation also emphasizes the need for greater staff expertise. � Much remains to be done. However, the PCI process which is being established begins to address the issues presented � here. It can be particularly helpful in the development of expertise in financial matters. As the PCI is improved and expanded, this greater knowledge will help the document to become a more accurate plan for the rehabilitation and replacement � of St. Paul's infrastructure. � l 1 � � t 22 � � � 4.0 PCI This chapter is made up of the project lists for each f�rtlonal , component: transportation, sewers, and parks. In addition, the transportation component is divided into subsections for streets, lighting, traffic engineering, and bridges. � These lists make up a program which is the most definitive possible at this time. Obviously, the availability of fwding, the dlscovery of new informati�, the appearanee of unforeseen � circumstances, and other 'variables cannot be addressed adequately in such a long-range program. .These project lists do, however, provide a valuable tool for foctising on the city's primary objectives � and guiding the direction of the Gity's capital improvements. As the PCI is revised, it will gradually be improved. The goa! is to provide increasingly accurate guidance for the city's • capital improvement needs. ' The form used to com ife these lists rovides a vast amount P P of information. A description of the form and the kinds of � information to be found is given in the following paragraphs. A reduced copy of the form is pictured, marked with letters , which correspond to each descriptive paragraph. , � u�tcem._ � ' �w��r'� OEPNRTNE4T/OIYISIWI p� � JtSTr,;T TiTLE/OESCRIiTIOM TOTA�COST 3982 1987 198� 19ES 1 COORDI- l9B0 OOIWIS COST (fUBO COST(FU�D COST (FUND tOST (fUNC COST Ifur+D rAtIO� CE Sp{�RCE � o � . . . G� � � 1 � � 1 . . �, , , 23 � A. CATEGORY This space is used to Identify the classification category of , all the projects on that page. These categories were developed by the Planning Commission and were described in Section 2.2. They are summarized below: A/1: Maintain Quality Basic Services/Prevent Hazardous Conditions � A/2: Maintain Quality Basic Services/Systematically Repair � or Replace Existing Service A/3: Maintain Quality flasic Servlces/Bring Developed Area Up to Basic Level � B: Maintain Support System C/1: Expand Services/Expand Existir�g Service in Planned � Redevelapment Area � C/2: Expand S+ervices/Expand E�xisting Service to Developing ' Area . C/3; Expand Services/Provide New Service � B. FUNCTION This space on the form indicates which of the service system � components (Transportation, Sewers, or Parks) is 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 functional project list is given here. Cumulative pages for the entire PCI are at the bottom of � the page. E. DISTRICT � This column identifies the Citizen Participation District(s� where the project is located. F. PROJECT TITLES � Individual projects are identified and described in this space. Projects for which additional inforr�nation can be found in Chapter 5.0 are footnoted. � � � � 24 , , - G. COST , The six cost columns identify: (1) the estimated total cost of the project; (2) the proposed year(s) for the project to be __ implemented; (3) the estimated cost for each year; and (4) the � anticipated source of the funds. It should be noted that all cost figures are in constant 1980 dollars. It sFiould also be noted that the fund sources identified are the likely sources, � but until a project receives an actual budget appropriation, the specific source of funding cannot be totally certain. For example, a project which is shown to be funded through Capital Improvement Bonds may also be potentially eligible for Community � Development Block Grant funds. Which source to use is determined at the time the capital improvement budget is developed. � H. COORDINATION This column identifies other projects and agencies that should be checked to be sure that the irr�provements will be done � as efficiently as possible. � ' ' , � , � ' , � � � i � ' 25 � 4.1 RANSrORTATION 4.1.1 Str�ets The suggested program for streets generally includes construction , or reconstruction of lighting systems along with the paving. An exception to this is in the downtown. Traffic signal work is included only when specified. , , The following abbreviations have been used on the project lists: , CA County Aid CD Community Development Block Grant CIB Capital Improvement Bonds , CMF City Maintenance Funds CSA County - State Aid CSO Combined Sewer Overflow Study ' FAU Federal Aid Urban GRR Great River Road ISSF Intertstate Substitution Funds ' MnDOT Minnesota Department of Transportation � � � -� ' � ' , ' , � � 26 C L � . . • O O ' S u � u a . 1{ O .+ uvmv � � I O�y C N Y N w � , . i�'V �. C O� N L d y N � � . c-'� X� N u • a.O � . . � ..'�. F- .� �. 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E E a v�i �t �y � � O tJ „d� �a�i U � x u m O m._ L O m C � ..+ � C •- m > V d W V7� �{� 3 � F� � � 1/7 m N H N d G Q '� W � . ; J F-- 1 J�{ � �� '_U � F � � � . 1._ �. ( ^ N ^ � � -� . .. � ^ ^ M � ' n � ? n n �n . 1 i a+ � u rn • c�, •L c � o •� � C".� N N O� O = . � U:_ l m Q Q m Q Q ' W c�d Y 1.�4 .L o c.� �� o00 000 , �,��o 000 000 000 000 yM v N � . � � . � � a0 V11� M f�O � ^�N N N� N O � : � O C" _ � W 1 C7 . G . a W ' • o u � c �ni=..o . o�..�v> . rn � . r+f- . � � v � � � W f N �� N ` � C) <ttiO ` C1�v N ' C1 u ra�— � N ` � O • N U Y ' , l ' � � U W . O U •- �c . � ��o � fCvN . . ._. � � �v � . W ' , 0 o u C � . • � >> N lL0 � • � c7�N ' n O �--�1-- . . ' \ N ' �- O U L:.1 . � � . . Q.' N Q t/1 J , . � O JO O� O . � . . Q O t�l� M 1—O: � .. O L`� ' H� C � • O � ,n v _ u u . � ' o E � O '� L w T . � �0 - • � •u o N Z 7 ' +-' O � � N � M �- d C C dl � L ' �n � u w �e ... � (� 0I N 'N � � a+ O W � — � � I N m �+ . .� W � � ' O ' � -J t�.V V N . � O � uo[ N3 : � • vai ~ N O � O c N a+ a+ a+ Ip • V L. N L W Q F/ F1 , . � ~ 7 /�p d N � • O C U L C � =W n' tn V1 F'N . ;.�F— � 1 i.�Z � �_V � . � ~ � .-U+ i, �_ ' . � 1 1 i � ^ ' 35 � • � '�' � � �.a �._. o�- ��t U C_ � ^ � w u O U p �=� O �'_� p , �n�O � OJ•..�N p . O �-'�F- � N i O e U i W 1 (,p O . � , G U a W ou o C O �t=i O � O7�N O • " O� O r+F- �D . � N ^ O U O �u � o u o � � � '� o • _ . >> o a C�ivN O .ti F- �D , N N . . � O " � N U • . Y L O 3 � W V 0 V V . ,_ �� O � ��o °. - � ` ['n v{n 0 . . O1 0 ~f- � �O O ^ � � ^ � � • . w " 0 o u p ' ,n �5. ° . N liO �. 7 Ca�N p . . � � � O ' ' . O �l-�- �p \ N 1--- O U � u f= � . CC N � � N J � . O � O O O . J p Q O , 1-� 00 � �� H.ti � E ' rp . � L . M � Q O in . u 6. � Z � � ` O C . � n' r0 , � a c V a., • � W � � � \ � � W � u J N L M . � a �„ �p . �^ a M� � V y � � F- � � O ,�`. •YI �W d K �J f- ~_ � W Q "" . � -U � ~ ' U t._ f_ ( N � � 36 E ` � ' �0 C1 N V�-9 � • C'~ r V G1 a+ N L � O v O G m N .� VI N :l f- '�°' Y a� Y F-uC c:.- � . ..._.� �� n c.� � i_nkp p C��N p �1 r •-+1- p ' N � Ol . .. . _.. . . ' .'""'' � O N � C7 I, .. N . ....- �.�� d V� N n u — �C O � �n=� o .)�.-�N C �T M �~ M � � U — ��"--- � . _.. . ... . .I . . .... ... _ � N -. _ N �I �u+ o �li � �Y LLp � � [��ln � C! r� M L ry N Q� N O ' � U N " ' ' _..._. ... . _ . �-.� . . y L � � W 3 n u u '-�'= -�� •- ��o . . a ro v� � °e n. '�F" � N (7 C.) I � l�l C� O L) � _C[ N �� N L+_O � , ' CO�N . � O� . n r.� . N F- Q c- v � . . �:� � _.. ...__ . . ...� - - - ._ . ._. Ci V7 1 G �� * * * I L:: Vl J . O U v O O O O J I Q O M M Ol . . � I F-c: m r\ ..� ... o c� F"� N . _ .....� 7. .__. . . - - � I N UI L C � A CI O � � N N O C7 �7 C � C - i O N � 0 0 o f- u � L L. L N W 4- V- pl a.� Q � w , c cy u O C O 7 � �. E O� u j �u y a+.� >C ' � u¢ u > u x m > > >¢ � d d a � i � L Q; l. L M u C �+ C �+ N �+ O � C n� in•- �n a+ in a+ O O L I L � Or- O v� Or.� � � ... U d U N U? L y N \� � 3 �n 3Y 3 �� V l d CI 01 Gl Y ��O � O �� `�- Z C Z`-' � C f� O •- m N �0 � �a� , 1 1 �+ 1 N ' . . t0 ir� a+ in u N � T .� � a� �n w•- v o u - m i � f� � d � x m �r � .� ; j � �-- o�i 3 w � � Y� E u- v i c �- ¢ eOi ¢ u L v� x �V . , �0 U d � M � O �+ � . � 1.J N ✓ �0 u V- VI N . , L t'- . F- -� .� v • .� c� �n o ?an rn u < t C N i N L !O O � � �L•L C ��J d N L+ N �A l� C Q ... .- -' Y N Y N 1- a d' ` . i� . �. � I � � � • N !_ - r.• � `^ i • , � ,�l ._ � .� 37 ' � � � 4.1.2 Street Lighting Most street lighting improvements are now done at the same � time as street paving and are included in the suggested street program. T'his program is made up of those projects which are not coordinated with paving projects. � The f ollowing abbreviations are used in the street lighting list: � CIB Capital Improvement Bonds CD Community Development Block Grant � � � � � , � � � . � � . � . � � � � � 38 � � ' •oo 0 •. uz z mo W a n C� � a« � . 0 �o�o go � ��N . � r � �� Qp . . . . . , . , . O C N , . � . U .. W � � �� a m� U � �5 ��y OO ' �-1 f- , . �� . . � U ~N a�O W ~V � O t�.' V Z p p >> � �vy Op Op � . . � . tJ �+F- 4- O N N ' w V � � i \ m�,�j � Y OCW7 V � � . . � �LLC oo � . u o+ � �N �� 7 U �N � 0. m m ' O C� v v . " � � � •-�i N�=i.O p O • , • � �`-'� OO � � h-' ~O NN W V � . � d.' Vi ' . � �� a~if J p V� O . O O J O • �� O � O� M� � � r � i 1 � O � � � N n O► � C C w r � � " Z � a r o � C1 � L � r F, J d Qp � N 1 � ►_� � � U N � i.r _ ' . � W � � � � . � � � � E ��..t o� S. W t a L � . . . 7 FJ- J O W � N � � � � � o nr > i W � � � � � C ~ '� }� � . . O 0. � a� � W � � W Q A z cs �,., c� ;� � :� .� in C �� ..� � � � . . . . •r Z C O oC+... O O O O O O O O O O O V Z Z Z Z Z Z Z Z Z Z g Z � � m m �-r ►-� W U C) >> �p � tD�i O O O �vN O OO N ..�F. O . � V �._..� ~��."� . . _ t,�,� m m � '-�1 M C �V U t� u'!1'iO O O �.�N O O ' .-+F-- O tn V1 N N � U � m m H H W �..1 U � � Z� � O O a�O O O O�ivN O O V r+!-- O �l'� ' ,r, N N r � � U v� w i F„ m m ` H .-. N W U U L �� O O � ' 3 q�v� � � � .°:� °w °o � N r N � p O �i1 7 V � • , � I _ m m m O Z� U U U . ' H N l�-O O O O � � q�N O O O H O� � ~N li'f O �"'� Z V W F• � � � 0 O J O O O O p O O O O O O UO O O O O O O O O O O O . O O O O O O O O O O O O J p Q O O O O O O O O O O O � • i--W � O � CO O O tn O ^ O CO � N N r N N N F.-�-� W W � . � O � � O O � � o ^ ^ o ^ n v v °� v �°n c`�v v °- � 'e +� 0 0 0 � u+ �a s- � � �. � � � O � 0�0 i � � � . v � � N i N � O Q C N � 7 7 O L 1-..' N i-� O� U i � � � b 1�-+ 3 O C C rn +°� � a 3 O A V � Z � m ry- O iy0 i C i i Y � � . y L � r � r J � . ,j � U Y �. O1 +� U N O � � �' � 'C C C c � tn N Q 3 �g 4. • C � v�i � 3 4 � � v „� � E •. . � W . � O � � K 7� 3 N U 7 � W > i ai 3 c" c � w " J a m' � � a � a'v a' v'�i aYi ¢' 6 a F ..�'., � vYi w c c > v � > O Cl V t L 3 � > r m C ++ Y d n L � vL ¢ rn d ro �6 � � �> � t" 4 J Ol i- O 'O C N G) ?� +� � � . )- 1- .-� > 7 U C X � i > i 1/1 O � C 7 O i CJ O R7•r iC 01 R7 A O W a � N t..) c7 J t� f K f 3 � li 1 _ .. W F- Z r w 4 � � �n � . z c� � F � w ^ w �n �o w , L� :y �p N r � M O � �+� j_ � 1� r f'� r- �r f� r lA 01 N . ° � 40 � � � 4.1.3 Traffic Engineering The kinds of projects the proposed traffic engineering program includes are traffic signals, traffic channelization and street � name signs. When traffic signal work is required along with street pavings, the signal work is included in the proposed street program. � Abbreviations used in the traffic engineering ptogram are: CA County Aid � CIB Capital Improvement Bonds FED Unspecified federal grant MnDOT Minnesota Department of Transportation � � ' � � � , � � � � , � � � � - � � ' 41 � �� a -d c. o�c° ��oaiiiw� - � . C�Z T N��dG E . . m ' W �'+ � �� G U U � � . . . �d' >> O Op v N O � � '� .�i F O . . � , y� N . � U V► �� • W d� � � W V O U >> 0 �vN O �-�r�-- N . . �. N . � � m ►,� W V Z R' 0 � �= O . �vN � • ry F._, O V N � V ti4 16 i F m W V Y O U . i z� 0 o � 3 Mvc� p . rV �F- � N N � � V � � �m� 0 o v �' .,., ,�, ' . � rN.y cV u=..p � . M �vN O O � e �F- o N N � V r W � � N 4 0 � O � �O 0 O p • H� � O C� F-•--� V� W � N r L ' • O � i a v- 0 z n o � �a w r � � V � N * +� . W VI r0 W C b i � J 01 L N • .-~. v� O A ~ ai nt W � W W � � C L C.�7 � � V #� . W d „G,�' , �V � . C� ` . 4 �• - � f.'. 42 � , � � ..., 00 � oa z° � u z m¢¢ m � �U U'L U U . �� O O O O �v O O O O O N �"�F O�DON N ' . � N _��..�..�,.� � U �r W Q m N U m � d W U� U ' �=7 000 O �vO OOO O � �--�1-- N O N N N � • O �r U 00 Q Q Ca �--�N U W U� U , �U Z� O O O O � - �t�0 000 O ' • ��V� �J .-1�--- 00 O N N N �F O �r _ 4- t� i � F c�QG 00 � N V N W� U E U i �� O O O O p �7 O O O O . � 3 M la_Q O O O O � . OJ v tJ1 • ^ " • � .c-�F.- 00 O N N r N ? O W 1 0- � • , _ ' G]�S Q m � W VI U O �OC.7 �� C O O o O � _"' OC.G O � �-+ N 4 O Q O O O . � p v N . M � ., .. .. .. � p ,.�� O O O C� ��` � � �0 O N N 1'- O w 7 U � K N O p"J� O O � U O � O O � O �p r O O� 6q � ' , � � C �i N � v c rn � c * w c v � 'F' z m � � N i r � F � •� � i N 1 � ,� * � U p � Q p N � c u � � � � [_] r • 10 q � rt1 t%I L � � W � L J � O �~-. °a `^ ^' n ,n �— z • C U i W � � � � � ~ '7 r6 L O i 4.� a U �• F- N # � � � u 2 W d �� . w�...,.,��., Z U f C.) �i � • � � W � N c � 43 � � �00 �.,. . . . .°o¢ z° z° ' • . " U Z 4 _ O CC O O Q W �--� W C N O D U tL�� Z� O O O O _= O O O O �� O OOO �`'� ,.�..�t... O O O O ` H � O�A� . . � � ef�r _- �w t�.t � � m m � d W. U U • �U Z c O O u1L=i0 O O ��N .. . '•'� � O � N � • U � � m �U V 7 d.' � � _� O . st l�p � � • �vN (.> �� N � � Vi � L F- c0 � .. w Y �V � . L �� p O �� O � 3 M la.p p � 7)v N 01 � V '�N l!') O �q � j U � � • m I T_ W O O(� U —r. • N �� O . ►+ Nti C O • � ��V� p Ol O .-i F- p \ N � !-- O z V � W F- . � y � W N J O O 0 U JO O O C� O O • J � O �O� N O O Ol N � H r-� bR . . � . � � C �i C/ C� c u .� � � c o W Z U \ O 4' C � rt * C � F- q O U 1 C Y b rt C N N C � � W � t�i ++ � a� �n E as W c rt � i M b y O� � • d U r i- � I v� ~ L O- c � v a� } Fi W � � ' � o� '� L E c O O W � !- U Q C W Q � Z C1 F_ � U j � _ � l� `� j � v� 1 — � ' 44 � � � 4.1.4 Bridges � Abbreviations used in the suggested bridge program are: Br. Bonds Bridge Bonds CA County Aid � CD Community Development Block Grant CIB Capital Improvement Bonds FAU Federal Aid Urban � MnDOT Minnesota Department of Transportation MSA Municipal State Aid PIA Public Improvement Aid � � � � � � � � � � � . �' � � � � � 4� _ ! � . � � a � � . .� o .-�'i o � � w eo� � , Z W iO � oLl � � 3 Fp n 3� �O m M M M W WA� w C � . N 01 O W W O • O W O C1�C I C/�.� V2 D+ i� Z �+ y+ Z. 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I ar 3 � L. O E U N �.•.-1 C] H U ?�2 •'I 7C N •.-1 J� O L� U Cl ?i�� C� N +� N p U7 a N N E C Si ►/ �-1 O � U1 J� tll N � 2 � •.i N O U' H N O F O CL•^/ O P: 1� ��-I N � .W � rl N FI U N � H N GJ �. N � V yJ [ 41 C � � N � u N C' N '� C7 P4 C O N N Ci fk C 3 +� N N N �O•.i 7 C7 C� C O N u1 O O H � O ai � •.i H W O N •.i •� E .0 �, [ .0 O M t� O a� .0 •.a O W d 'r' � U N 17 � �'., t/I U N U � fA H N IO E+ U x Cf U N +� E � WQ Q I , z c� F, U �~ U LC L �� r' P- . r f� �n � • . c �7 . . ,.. � � . ,. . . _ � (Ca�_�:�:..:.r"ia�t..« _. .. . . . . . � � - � - ,.. � . . . . . . '. ' � � - � . . ►i Z . .. .. � . . . . � . . ' 0 0 . . �.r. . . � �. ' - O4 - u z W Z� � >> OD�N � �� N 6�.1 � W N .-. � o¢. � U o c� �- - z� aa ��o °oo � �p v N �f— O q� U C W �� Z� �� r �vN • � • T � Q r~� N ' i � W V . � N y\j W L Z� � 3 M v v,0 u rn Y �'�F"' . r N � O 7 U 1 d . Z W � O �U �+ �:C ' f+ N LL.O � • . M �`✓N � ti H \ N F O � U 1a.1 � � N • Q K F—Q O fl U J � (J O � � O � N O O�i � f-.-� . , W � . O . , w i° w .e q w y� a+ � o ro � a, o+--� � � ' � o c � H a.� •., ' � � > v � -.biv �° � o �a � ro ayGi1 >. F� � �.i � 'U �i N � C1 N V1 � C) 7'. � v � W � U . � � E o ~Z o >.v .-�+ d W ?4 � ul 2 PO � � N .~-� �i � 3 , OQ'. . • • L t- g u v >.•.+ � v F � N *� N W r',f1 N � U N � � � �7 C? q O .aC� N � � x U �il a� � O W n- W�— 7 W E C z u ^ r � ' � c� �� c � � � . _ ' � 58 _ � � 4.3 PARKS AND OPEN SPACE The suggested PCI for parks includes park, playground, recreation � center, tree planting, special use facility, and parkway projects. The following abbreviations are used in the project list: iCDBG Community Development Block Grant CIB Capital Improvement Bonds I LAWCON Land and Water Conservation LCMR Legislative Commission on Minnesota Resources UPARR Urban Parks and Recreation Recovery � � � � � � . � � � � � � � � � 59 � t � ' . N � u,� � v� �+� � c� d . G�� i N OQ NQ � �yb � UZ . . . . . . . m V W O CJ �� O � �Ot=i0 O �� F- O N �' O � V ...._.... 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N�1-� N r a d Y L C1 \ N V1 - • � N F- , v•,-- [Y L i U N O Lti p . � Y 1- J•^ c � �n b d N rt7 � N c V � �- C f v � �W �b � � i O i-� � v1 O "O (p c.. '� E.c ra � i i E +� �n E 'U +� i� .� y s_ � v o ro •r- • o • o ° �` -�� n. o u. � ,�.� m � � c� = F;- n w ��r- � � � i., L ...-...�_.....r...._•.... ...w,..r....�.._ 'U F � . L� F- . - o: i[] c+') O M�A O tn "' f- pp 1n- r- N r- r r M r r .- r� �� 63 � � �� 00 a� � F c.�i W O t� z oc � • �v� ' �-�+F-- � O u W � � C� >> � O 1A LL.O � �vH � � �� N � O � . � ! a �y Z� i ��O rt o00i`�� G. .�F- . ' � tn � t^ � O > i 67 W N p t.� Z d' � � C �vO � ti H N t O • C.�1 V � � m O O t� �"� Z� r ' � >> O . M �v� O � , • � •-,F- • � N O F- O M T U bq W � � � N O O p J � . CJ O � J� p�i �� M � ' O�'-� b4 C O a-� � ' . r � ro t � � � � N O •V ' � V �. R � N d v m fY V C U �j d ✓� i O O N � � \ •.-. _ � W C J � M i N H � C L f- � N U �� 0. W y� p � L r0 n w � °� d W Q v Z U r' � r � U V Z � � LL � N � � � • ` 64 � ;. . . , _ � � ?O�1 �Y i Y �,r.�y Gl L 0! L _' _ . O Q W d W d v z W . O U O�0 L=i.O . . 1 � � �F- N O • U W � Q � G U 2 d' C =� � �v� � �H Q N � O V U . d � � W � C • R3 u � >> . i ��° � � �� a. � � o a � w c� Y � i W N � Z�K a >> . � ��N � �� N O U 1 U O] m �--� nr Z W V� V ' o cv ►+ z� . N �� ' � O O � �N v O ' � � .�i F- z\ V1 � N O W KS � N Q �.' O O 0 O J O O U� $ O J N � �� . .. ., . .. �. , C � O . Y u � � o N • C � � U �v� L � � U c 4 ° `� � �i V � C O � a O d V1 V b L i N � � � d p U �4.i r O � � p C W /..1 'O � Y Z d . M1S f- i6 O� . N d i.� Ql � � W i C� � L � d � G) i� � � C 7 C O W d W m rt W F- T W d �Z U U V Z LL � 1--� N .- �-- .-� • . p 65 _ . . � � 5.0 TECHNICAL APPENDIX � � This appendix provides more detailed information regard- � ing past appropriations and future needs and additional , rationale for the decisions made by each department in compiling their proposed lists. Project-specific infor- � mation such as the impact on operating and maintenance costs for each functional area are also included. � 5.1 FUND SOURCES This section examines each major financial resource in terms of how it may be used, how big a role it has played in the past; and what role it will play in the PCI. The � past level of appropriation for all fund sources is shown in Figure 5-1 . � 5. 1 .1 CAPITAL IMPROVEMEPJT BONDS Capital Improvement Bonds (CIB) are city-issued general _ obligation bonds. These bonds have provided approximate- � ly $17 million dollars for capital improvements. This has been about 16� of total past appropriations. They have become an increasingly important resource for � financing capital improvements, as shown in Figure 5-1 . From 1976 to 1980 the amount spent from this source more than doubled. . � Projected costs continue this proportion. Capital Improvement Bonds are anticipated to cover 19% of the PCI. These bonds, together with Water Pollution Abatement � 6onds, are projected by the Budget Section to provide $10,500,000 annually through 1985 in accordance with St. Paul 's debt policy. The ratio of CIB to 4JPA may � vary, but the total cannot exceed $10.5 million. As the following graph shows, the PCI has projected annual expenditures 'of over $14 million for 1982. What this � shows is the major dilemma faced by St. Paul in the 1980s: increasing needs and shrinking resources. They key challenge will be to discover alternative methods of financing these needed improvements so that the city' s � physical assets do not continue to deteriorate faster than they can be replaced or repaired. .� � � � 66 FIGURE 5-1 PAST APPROPRIATIONS Million � Dollars BY FUND SOI�RCE, 1976-198� 30 — � 23 — • � L. _ OTHL' � 12.1 24 — � � 22 ` . � 20 .- � OTHER �g OTHER $ � � OTIiER �.6 4.6 REG.PK••` OTHER � 16 PEG. 1.7 PK- � 2.2 REG. � PK. 14 1.4 6JPA REG. 7,p WPA tduA PARK � �.a t.� a.0 12 REG. PK. . WPF 13.4 CA 0.� � iC 14SA �A 0.7 4.0 'dP� 0.5 2.5 MSA � CA CA 0.6 2.6 $ 1.8 KEY ca r,s� � �'� "SA z'" CD CIB Capital Improvement �p Bonds 6 z.a a.o CD Comnunity Development Z�8 � Block Grant `�sA CD �� MSA Municipal State Aid 3•� CA County Ai d n '�' z�� 6JPA Water Pollution Abatement Bonds ' c�e Reg. Pk. Regional Park Grants z 1D5 �IB �IB i c►a .t � 3.3 � 3.5 I 3.'/ CID 1.7 �67 1976 lyl7 1N78 1979 i9� � � � ' MIILLION � DOLLARS �Ig/wpA � 15. � NOT FORMALLY PROJECTED BY � BUDGET SECTION � __ _ __ REVENUES 10 � � . � .` .` . a�� + \ � ° � ` � . ♦"Z 1 5 �� ° . � . - ' PCI �� ` � ' EXPENDITURES `�'� CIB � ``�� ,�_�-.•._� '�-'"— —'--�—��Pa � 82 83 84 85 86 � , � 5.1 .2 4JATER POLLUTION ABATEP�IENT BONDS j 4Jater Pollution Abatement Bonds (WPA) , as stated in the previous section, are general obligation bonds sold by the city. As such they are subject to St. Paul 's Debt � Policy which was adopted by City Council on January 30, 1978. Appropriations over the past five years have ranged from $7 million in 1977 to $500,000 in 1978 and � comprise 17% of total five-year appropriations. The major project that has been financed through the sale of these bonds is the Thomas-Dale sewer separation project. With CIB, programmed expenditures for 1982 exceed the � $10.5 million projection allocated to these bonds. For the entire five years, however, WPA is projected to comprise only 11% of the total programned revenue. The � yearly amounts prograrr�ed are shown in the previous graph. � � 68 � � � . .3 M UN Y DEVELOPMENT BLOCK T Community Development Block Grant (CD) is a federal block � • grant authorized under the Housing and Community Develop- ment Act of 1974 and subsequent amendments. The total amount allocated to St. Paul has been dropping in recent � years. The Budget Section has forecast an annual amount of $10 million through 1985. Of this total , only 20� can, by law, be used for administration. The remaining 80%, or $8 million, is available for projects and programs � which meet the established federal guidelines. Community Development Block Grant moni•es have provided approximate- ly $1-4 million each year from 1976 to 1980. Projected � expenditures from this source vary between $2 million and $3 million for each of the five years. This amount is well within the projected levels and is less than the � previous appropriations. The number of projects financed by this source is likely to grow as specific projects are determined to be eligible. It must be noted, however, that CD funds are used primarily to aid low and moderate � income people through housing and economic development programs. It is not, therefore, generally available for capital improvements. The following graph portrays � prograrrmied costs by year. , � MILLIOP� CD DOLLARS — REVENUES � $10 NOT FORMAILY PROJECTED ' BY THE COMMUNITY � DEVELOPMENT DIVISIO�� PCI �5 EXPENDITURES . � 82 83 84 ', 85 86 � � � 59 � � � � 5.1 .4 MUNICIPAL STATE AID h1SA Municipal State Aid is a sum of money allocated to the � � city by the state to construct, repair, and maintain major streets. These streets are designated as part of the State Aid Street System through negotiations between , the city and the state. They must meet aqreed upon criteria and be officially identified by City Council and state action. There is a ceiling on the number of miles � of streets that can be designated. In addition, one quarter of the amount received from the state is reserved for maintenance of these streets. The street and bridge functions are the two major users of h1SA monies. Traffic � signals can sometimes also use this revenue source, but street lighting cannot. Figure 5-1 shows that Municipal State Aid has been a relatively stable resource over the � past five years. The accompanying graph shows that in 1982, 1984, and 1985 the projected expenditures exceed the anticipated revenues. This is due to the fact that � the parks, bridqe and street programs are planning to use the same money for their projects. � MSA �+IILLION ' PCI DOLLARS EXPENDITURES ` �4 * REVENUES � 3 2 � 1 � � 82 83 84 85 86 *Excludes set-aside for maintenance � . . D � County Aid (CA) is much the same as MSA except that the money comes from Ramsey County. Like MSA, there are designated routes, a partial set-aside for maintenance (4�), and a limit on the number of miles of street that � can be designated as part of the County Aid street system. This means that any addition to the county aid or state aid systems must be paired with the deletion of other � streets from that system. Appropriations from County Aid � 70 � � . � decreased sharply in 1978 and have majntained that lower level . The prograrrmed use of County Aid is generally at � or over the anticipated revenues ,as the graph indicates. The Capital Improvement Budgeting process will make the 7H�USANDS choice between competing transportation projects. � CA � 1 ,000 � REVENUES* � 500 � PCI EXPEIVDITURES � g2 83 84 85 � � *Excludes set-aside for maintenance 5.1 .6 SEWER SERVICE REPAIR FUND Sewer Service Repair Fund (SRF) is used to pay for major � sewer repairs that are beyond the capacity of city main- tenance crews. The fund is financed through sewer service charges that property owners pay with their water � bills. While the user charges now raise a reliable source of revenue, the Sewer Service Repair Fund has not provided more than 1% of the yearly Capital Improvement ' Budget from 1976 to 1980 ($150,000 per year). The sewer program is calling for spending twice the present annual amount in order to maintain the city's sewer system. The program, therefore, depends on City Council authorization � of an increase in the sewer service charges to property owners. � 5. . REGIONAL P RKS The Metropolitan Parks and Open Space Comnission sells � bonds and then grants the proceeds to local governments for capital improvements to regional parks within their boundaries. The Regional Parks grants have played a significant part in improving St. Paul 's six regional � 71 � � � � parks. They have accounted for about one-third of the total parks budget over the past five years, as shown in � � Figure 5-1 . In the next five years it is estimated that they will provide 53� of the resources to finance the park program. , 3.1 .8 OTHER � This category is used to group all other grants and relatively minor financial resources that are used for capital improvements. Exampjes include categorical grants from the state and federal government and trans- � fers from the general fund. One significant, though small , source included here should be described more fully. Public Improvement Aid, an annual appropriation � from the General Fund Budget, is largely used by the Department of Public Works to provide assessment relief to citizens who live on corner lots and to assist home- � owners in meeting the costs of sidewalk reconstruction. It has also become increasingly important as a way to finance design and engineering studies for projects which will receive grants. Grant monies generally cannot be � used for these studies, so PIA is used to fill this gap. The amount transferred from the general fund each year has been about $6Q0,000. ` Figure 5-1 shows how important these other sources can be. They have made up 29% of past revenues for capital improvements. They are anticipated to fund 21% of the � total program. The amounts from these miscellaneous sources range between $1 and $9 million in the program's five years. This category can have a sig�ificant impact � on the implementation of the PCI. On the other hand, it can fluctuate greatly, and many of the grants included in this category cannot be relied on with confidence. � 5.1 .9 RELIABILITY OF FUND SOURCES Recent budgetary crunches at the federal and state level � have put some fund sources in jeopardy. Others are more reliable. While the city's forecasting abilities in this area are not very sophisticated, the following paragraphs � will discuss what changes seem to be occurring. A.CIB/LJPA. These two sources are general obligation � bonds and rely on the city's property tax base. They are, therefore, fairly reliable. They must be used judicious- ly, however, so as not to overburden St. Paul taxpayers. It was for this reason that the city adopted a debt � policy which limits the amount of bonds that can be sald each year. � 72 � � � ¢.CD. The Comr�unity Development Block Grant allotment to St. Paul has been declining in recent years. It fell � � again in CD Year VII (1981-82). There is some indication that additional programs will become eligible for CD while the amount of the grant remains the same. This � will put a greater strain on CD as a steady resource for capital ir�provements. C.MSA. Municipal State Aid is received from the state � according to a formula set by state law. It will probably not decrease. If the state� gas tax or license fees are raised, however, that vrill increase the total amount in � the fund and consequently St. Paul 's share will also increase. D.CA. County Aid is also established at a minimum level � by state law. The money is given to the city from Ramsey County's road and bridge fund, which is property tax originated. The city receives the minimum level from the � county each year. This amount will probably not increase unless the law raises the established minimum. �.REG. PARK. Regional Parks grants are based on the , metropolitan prop�rty tax, with bonding authority approved by the legislature. Since the grants reflect � the Metropolitan Parks and Open Space Cor�ission's capital improvement program, the future of this resource will be determined at the regional level rather than locally. � F.OTHER. This is the category that a�ill see the most variation. Most of the financial resources grouped here � are federal and state grant monies that are not guaranteed. For example, the Land and Water Conservation (LAWCON) and Urban Parks and Recreation Recovery (UPARR) programs were both administered by the Heritage and Recreation Service. � This agency was recently abolished and its functions taken over by the National Park Service. All 1981 funds for these programs not under contract have been rescinded, � and no appropriations for 1982 have been proposed. The end of these grant programs will have a significant impact on the Park program. As these and other sources � dry up, there will be increased demand for the more reliable sources v�hich are under more local control . Thus, changes in this category will reverberate through- out the entire program, creating the need for readjust- � ment. There may very well be a call for new taxes or increases in various kinds of loca1 taxes to make up the difference. � 73 � � � � 5.2 PROGRAMS This section offers more detailed information regarding , the individual service systems (Transportation, Sewers, , and Parks). Past appropriations and future estimated costs are identified by year and fund source in the Financial Qackground. The Program portion of each , section offers technical information and criteria used by those who compiled the project lists. It also provides comments on specific projects and an indication of the � impact on operating costs of the projects. . . RA S ON � The Transportation System includes four service compo- nents: � 1 .Streets; 2.Street Lighting; 3.Traffic Engineerinq (signals, signs, etc. ); and � 4.Bridges 5.2.1 .1 STREETS FINANCIAL BACKGROUND � One way to begin to get a grasp on the scope of the project lists is �o compare past appropriations to nrogram costs. This is done for streets in the following � tables. PAST APPROPRIATIONS (In Thousands) � Source Year 1976 1977 1978 1979 1980 CIB +�4 '�,8�5 0 656 698 � CD 0 0 125 1 ,676 966 MSA 2;009 1 ,313 565 1 ,190 2,327 CA 1 ,150 1 ,767 720 86 748 � Other 349 274 1 ,774 1 ,077 1 ,726 Total 3,802 5,179 3,184 4,685 6,465 � PROGRAM COSTS (In Thousands) Source Year • 1982 1983 1984 1985 1986 � CIB 4�5 637 356 �5 435 CD 1 ,683 2,350 1 ,600 1 ,600 1 ,600 MSA 2,615 2,226 1 ,093 1 ,616 2,271 � CA 769 900 1 ,218 723 200 Other 239 1 ,942 1 ,865 853 430 o�ta� 5,80 8,053 6,131 5,� 4,936 � � 74 � � These tables show that the average cost of the street � program ($6 million) is 30% higher than the average past • five-year appropriation. However, it is less than the � amount appropriated in 1980. In examining the fund � sources used by streets we find the following: 1 .Capital Improvement Bonds (Cl2) remain fairly consis- , tent; 2.The increased use of Community Development Block Grant begun iri 1979 is nlanned to continue; � 3.There is a moderate increase in the share of Municipal State Aid (MSA) prograrmied for use over the level appro- priated in the past; � 4.There is a slight decrease in the share of County Aid (CA) prograrrnned compared to the past five years; and 5.The amount of money expected from other sources is � about the same as what has been available in the past. The major issues raised by the street program involve coordination of MSA with the bridge program and whether � or not the Corrdnnunity Development Block Grant program and the grants that comprise "Other" will actually be avail- able in the amounts needed. � The increase in programmed MSA is partly responsible for total use of this resource exceeding anticipated revenues. , In this case, not all progranmed projects will be able to be implemented according to the schedule in the project lists. The future of various state and federal grant programs is in question, so the amount of block and other � grant monies may be optimistic. PROG RAM � A.TECHNICAL BACKGROUND The project list for street improvements indicates the streets that at this date, 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 another 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. 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 test ing is generally not available until the City Council passes a final order for each specific project. , 75 � � � � With the exceptions of Shepard Road and Kasota Avenue, , all projects can be completed in one year. Although these improvements may be related to other abutting street projects, they merit consideration on their own � and would remain advisable even if nearby projects are not approved. B.PROJECT COMMENTS � This PCI generally includes construction or reconstruc- tion of lighting systems in all projects except those in the downtown area. Traffic �signal reconstruction is � included only where specified. Municipal State Aid funds cannot be used for new lighting construction. For this reason Capital Improvement Bond monies are shown as part , of the financing on P�SA streets where new lighting or expansion of existing lic�hting facilities are probable. One project has been shown on the program to be funded � --tiy "MnDOT", the Minnesota Department of Transportation: Kellogg Boulevard in 1984. The State will participate in improving trunk highways within the city, but the deter- � mination of which trunk highways and what year is chiefly a MnDOT determination with limited city input. Shepard Road between Sibley Street and Randolph Avenue is � programmed to begin in 1986. This project is needed because of the qarrov� lane widths and high traffic volumes on this street. However, the competition for � County Aid funds requires that the available money be spent on other needed projects without the number of problems that a Shepard Road reconstruction project � creates. The cost estimates submitted for the proposals on Kasota Avenue, Prior Avenue and Transfer Road are based on a � scant amount of information. They are approximations based on routine pavement costs. Such factors as excavation, dirt fill needed, and right-of-way costs are � not addressed in these figures and cannot be addressed until more is known about the exact locations of the road- ways and the real estate transactions which have not yet � taken place. � � � 76 � � C. IMPACT ON OPERATING AND P�AINTENANCE COSTS , The five year program for streets will not significantly , affect street operation expenses. Of the approximate � budget of $11 .5 million for cleaning, plovring and street repair, $6.5 million is budgeted for cleaning and plowing. These operations are not affected by upgrading the street. � The remaining $5 million is spent on repairing both residential and arterial streets. If in a normal year a total of 9 miles of streets are reconstructed out of the � city system's total of 880 miles, less than 0.5% of the total operations budget wou.ld be affected. However, the above percentage figure ignores ongoing deterioration of the rest of the system. � 5.2.1 .2 STREET LIGHTING FINANCIAL BACKGROUND , Past appropriations and future need are shown in the following pair of tables. PAST APPROPRIATIONS (In Thousands) � Source Year 1976 1977 1978 1979 1980 � CIB �6�, �95 -� 171 441 CD 0 0 0 263 109 MSA 30 0 0 101 0 � CA U 0 0 12 0 Other 178 0 0 0 0 Total 575 195 95 576 550 PROGRAM COSTS (In Thousands) � Source Year � '1982 1983 1984 1985 �386 CIB 530 630 600 700 630 CD 250 250 250 250 250 � Total 780 880 850 950 880 The two tables show that the street lighting program is planning a program which is more ambitious than what has � been done previously. They are doing this by programming a steady amount per year for citywide improvement and by identifying specific streets where previous paving was � not accompanied by related work in lightinq. This program results in a 54% increase over the previous five years' appropriations. � � 77 � � � � The coordination of lighting and paving means that even- � tually these types of projects will become fewer, and � the lighting program will be able to concentrate on energy and other improvements to the system. If this happens, � and Cor�nunity Development monies remain available, this will lessen the amount of CIB monies needed for separate lighting projects. As shown by the program costs table, however, this is not expected to happen in the next five � years. PROGRAP1 � � A.TECHNICAL BACKGROUP�D While current city policy requires that the entire right- of-way be brought up to standard when a street is repaved, � this was not always the case. Therefore, there are a number of arterial streets with inadequate lighting or no lighting at all . Bringing these streets up to established standards is needed for pedestrian and vehicular safety. � Proper standards are determined according to the guide- lines established by the Illumination Engineering Society. The guidelines vary depending on the characteristics of � different t.vpes of streets (i .e. , residential , arterial , etc. ). B.PROJECT COMMENTS � Citywide Lighting Improvements, an annual program, will convert existing lights--80� of which are considered obsolete from an energy point of view--to a more energy- � efficient source. It is also used to supply additional street lighting in response to citizen requests, although this function constitutes only a minor part of the � program. Since street�lighting improvements are now done at the same time as street paving, many lighting projects are � included as part of the paving projects identified in the list for streets. The Residential Street Lighting Program which is coordinated with Residential Street � Paving, is an example. C. IMPACT ON OPERATING COSTS � The Citywide Lighting Improvements would cut the energy costs for street lighting by about 1/3. Energy costs for the individual projects would also drop substantially. � , 78 � � � . � 5.2.1 .3 TRAFFIC ENGI�dEERING FINANCIAL BACKGROUND � The following two tables will be used to compare past � traffic engineering appropriations with the estimated � cost of the program. � PAST APPROPRIATIONS (In Thousands) Source Year � 1976 1977 1978 1979 i980 C I B —� 58 . �3 $� �- 360 CD 0 0 0 0 139 � �1SA 60 156 109 101 0 CA 30 55 60 65 0 Other 50 7 100 9 20 � Total 198 275 587 326 519 PROGRAh1 COSTS (In Thousands) Source Year � 1982 1983 'T3$�� 1985 1986 CIB 270 270 270 570 270 � MSA 100 100 100 100 250 CA 20 , 20 20 20 20 Other 0 0 0 0 1 ,550 � Total 390 390 390 690 2,090 The major change that appears from examining these tables is increased reliance on CIB, a 75� increase. Anticipated , use of County Aid is less than previous appropriations. In addition, a major grant is anticipated in 1986. With this grant, the program costs represent a 52� increase � over past appropriations. If the grant is not included in these calculations, program costs are increased 21% over previous appropriations. � PROGRAM A.TECHNICAL BACKGROUND The Traffic Engineering program includes traffic signals, � traffic channelization and street name signs. 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 . Th�e signalization of an intersection can also be determined by City Council or Mayoral action. Most of St. Paul 's existing signals are , 20 years old or older, and the design life for a traffic signal is 20 years. The maintenance costs per intersec- tion increase rapidly after the 20 years has passed. The � controllers, wire and anchoring bolts are most prone to failure. 79 � � � � B.PROJECT COMt1ENTS The number one project for all five years is Citywide � , Signals. This program is used to build new signals where needed and to make small safety or efficiency improve- ments at inplace signals. tTraffic Signal Modernization is an ongoing program to maintain the existing level of this service. As the signal system deteriorates, the amount of fuel used by � vehicles increases, wasting energy and increasing costs to motorists. , � Traffic Channelization is a program shown in all five years. The funds provide the capital to create small modification to the existing roadways. Some examples are: , a safety island for pedestrians, particularly at signal- ized intersections and turn lanes for either right or left turning vehicles. These turn lanes frequently provide for more efficient movement of traffic as well as � greater safety. The Street Name Sign program runs from 1982 to 1985 and , again is a continuation of a program of the Traffic Division. The prqgram's purpose is to increase the visibility of the street name signs along arterial � streets to aid drivers who wish to turn off of the arterial streets. Computerized Signal System-Non-CBD, which is in the 1985 � and 1986 programs, will be an extension of the downtown computerized signal system. It is expected that the CBD system will provide very good results and will show that � including the entire city would be cost-effective. A specific fund source has not been firmly identified. Some CIB r�atching funds will be needed. The rest of the � funding should come fror� a grant program such as Federa�l Aid Urban. C. IMPACT ON UPERATING COSTS � The Citywide Signal Program can have varying impacts depending on how the funds are spent. Installation of a new signal can increase the operating costs by 3-5% , annually. Replacement of an old controller is likely to reduce the operating/maintenance cost by 10%. The Computerized Signal-Non-CBD project would add about , 1-2% to the annual operating and maintenance costs. � 80 � � � . � 5.2.1 .4 BRIDGES FINANCIAL BACKGROUND � - The following tables detail bridge appropriations and estimated program costs. The only two consistent sources of financing shown are MSA and Bridge Bonds. Bridge Bonds are grants from the Federal and State governments. � They are awarded on a competitive basis throughout the state. In the Past Appropriations Table, they are included in the "Other" category. The program assumes � that two projects each year will receive these grants. MSA is used to finance bridg�e repair and replacement as well as to provide matching funds for the Bridge Bond grants for bridges that carry MSA streets. � The other sources of financing are highly variable from year-to-year. For example, in 1985, the "Other" category � includes $956,000 from CIB, but there are no other anti- c9pated expenditures of CIB monies in the program. The same is true of CD monies , which only appear in the 1983 � program in the amount of $356,000. PAST APPROPRIATIONS (In Thousands) Source � Year � 1976 1977 1978 1979 1980 CIB 330 �4 0 0 0 � MSA 960 960 2,171 1 ,108 304 CA 489 0 0 613 0 Other 1 ,365 0 6,420 115 7,734 � Total 3,144 1 ,024 8,591 1 ,837 8,038 PROGRAM COSTS (In Thousands) Source � Year � 1982 1983 1984 1985 1986 MSA ��7 836 �,710 2�8 1�9 � Bridge Bonds 667 695 1 ,055 3,970 2,435 Other 102 819 523 3.006 599 Total 2,016 2,706 3,288 9,904 4,263 � The br�dge program �s quite consistent with past trends. There is a 2% decrease in programned spending compared to past appropriations. However, the expectation of bridge , bonds financing two projects per year may be optimistic. � , 81 ' � , ' PROGRAM A.TECHNICAL BACKGROUND � , The schedule developed for the Bridge Program involved many different factors. ' 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 mainte- nance forces" are taken care of by force account (city crews funded by maintanance budget), and obviously those which are rated as "inadequate to tolerate any live-load, � warrants closing bridge to all traffic", or less, are taken care of immediately. The ratings in between these two 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 hiw knowledge of the effect of any deficiencies on the � safety of the bridge. Some deficiencies that cannot be corrected result in posting the bridges for less than legal loads. These inspections and ratings identify the bridge repair program and greatly affect the priority of 1 the projects. � In addition, the inspections not only require that an up- � � to-date condition rating be made, but that a complete inventory of each structure also be taken. The inventory covers the geometrics of the structure and streets or facilities involved, the types of routes served, traffic 1 counts, available clearances, age of the bridge and much other pertinent data. All information obtained from the inspections is furnished to the Ptinnesota Department of � Transportation (MnDOT), who maintains a complete inven- tory of all bridges in the state, and they in turn esta- blish a sufficiency rating for each bridge. The suffi- � ciency rating is obtained by inserting the information into standard formulas developed by the Federal Highway Administration and generally defines the degree of need for rehabilitation or replacement of the structure. � Special and more detailed inspections are also made to . determine the extent of rehabilitation work required, tivhich could greatly affect the priority of the project. � For example, if it is determined that only resurfacing of the deck is required, doing that v�ork at an early date would result in a considerable saving over the costs for ' complete deck replacement that would be required if corrective measures are delayed. ' 82 � � ' � � s B.PROJECT COP1MENTS The sufficiency ratings not only give an indication of � the need for work on the structure, but are used in � determining eligibility for obtaining State and Federal grants for rehabilitation or reconstruction of bridges as well . While a majority of the programned bridge pro�ects , are eligible for the grants, the funds available are so limited that it can be expected that only a few projects will be approved. Of those approved, considerable match- � ing funds, obtained from other sources , will still be required. The availability of these sources determine the priority of the projects to a great extent. Federal Aid Urban funds can only be applied to those ' projects located on FAU routes and are prioritized with all other types of projects. Public Improvement Aid � (PIA) and Public Works Contingency Funds (PWC) are used for supplemental needs or for small projects which are not eligible for any other funds. � Projects involving bridges on State Trunk Highways have been shown as being funded by MnDOT, and are programned on the basis of priorities established by them. � Of necessity, bri�ge projects generally require that the street carried by the bridge be closed and adjacent � streets be available to carry the detoured traffic. The schedu1es of the projects are determined by this necessity in many cases. For instance, rehabilitation work on both � bridges which carry Lexington over the Burlington Northern tracks (GN) and over Pierce Butler is programned the same year, which will result in only one closure of that section of Lexington; while the work on the Payne , Avenue and tlae Arcade Street Bridges is programmed for two different years, so that one will be available for a detour route during construction of the other. This same � scheduling must be carried out in conjunction with street and sewer projects to some degree. Generally, it would be more desirable for replacement � . projects to be scheduled in accordance with the suffi- ciency ratings, since the structures having the greatest need for replacement would then be taken care of. Basing � project timing on these other considerations does not always take care of the worst situations. ' ' 83 i ! i � 1 . The projects for the replacement of the Selby Avenue � bridge (B-1023) , Navy Island bridge (B-1042), and the . Raymond Avenue bridge (B-1051 ) are programned later in the PCI due to coordination problems and the need for � some decisions to be made. Because af the condition of ' these bridges, the load capacity of each is less than legal , and postings now in place will be again reduced in the near future. While many potentially dangerous situa- � tions can be alleviated by lowering the permissable load on the bridge, the complete function for which the bridge was intended is no longer being served. , The projects for replacement of the High Bridge (B-1075), Snelling-Marshall bridges (B-1103) and Marshall Avenue bridge (B-1068) should also be done sooner because their ' condition not only limits loads, but their geometrics limits traffic capacity. In each case, the projects will be carried out by �1nDOT, and the PCI reflects � the t�1nDOT work schedule. The projects for rehabilitation of the Robert Street Bridge (B-1072) and Repairs to the Robert Street Retain- � ing Walls (B-1076) should be programmed earlier as well , , since early work 4n these structures would probably result in considerable cost savings than if the work is � delayed. Foreseeable funding does not allow such changes, however. ' C.IP�1PACT ON OPERATING COSTS The following list of bridge projects identifies those which will significantly affect operating and maintenance costs. An increase of 2� or more in the total annual , amount budgeted to operation and maintenance is the level at which an increase or decrease is considered significant. � Project Number B-1098 Increase in operating/maintenance costs � of $9,000 per year. B-1100 Annual operating and maintenance costs will increase by $4,000. B-1106 Increase in annual operating and main- •� tenance costs of $7,800. 6-1084 Annual increase in operating/maintenance costs of $3,700. � ' 84 � � � . � 5. . SEWERS FINANCIAL BACKGROUND � ' Past Appropriations and Projected Costs for sewers are , shown in the following tables. These tables show an 8% increase in the projected cost of the sewer program , compared to the past totals. While in the past most of the appropriations came from 4JPA, in the program the ratio of CIB to WPA is more balanced. The program also � calls for a doubling of revenue from the Sewer Service Repair Fund. Raising the user charges to provide this increased revenue will require City Council action. Assessments (Assess) play a variable role in the program. , The city's assessment policy governs how much benefiting property owners can be assessed. Generally speaking, all first time construction is assessed at 100� and repair_or � reconstruction is not assessed at all . An exception to this policy is relief sewers, where first time construc- tion 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 revenues is, therefore, tied to the type of sewer being constructed. � PAST APPROPRIATIONS (In Thousands) Source Year ' 1976 1977 1978 1979 1980 CIB 0 0 0 852 750 CD 0 0 300 1 ,266 0 , WPA 4,000 7,000 500 2,658 3,962 SRF 100 150 100 100 150 Other 2,618 554 0 264 850 � Total 6,718 7,704 900 5,140 5,712 PROGRAM COSTS (In Thousands) ' Source Year 1982 1983 1984 1985 1986 CIB �24 T,4�0 1 ,565 971 T,�2 � _ WPA 8,498 3,700 783 1 ,435 100 SRF 300 300 300 300 300 Assess 82 1 ,200 789 1 ,967 899 � Other 350 0 0 0 0 Total 10,754 6,630 3,439 4,673 2,851 � , 85 � ' �� ' PROGRAMS � A.TECHNICAL BACKGROUND � The sewer program is based on completing major projects which are in process, continuing annual programs, and � beginning those projects which are presently known to be ' needed. Projects are currently identified by the Division of � Sewers and Utilities. Major trunk lines are inspected periodica1ly, 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 improvements to St. Paul 's sewer system. � B.PROJECT COMMENTS Results of the investigations and studies are used to determine timing o,f each sewer project in the PCI. The smaller projects are identified annually and are accom- � plished through the Major Sewer Repair Program. Larger sewer construction needs are prograr.med separately. For example, 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 Storm- water Pond Acquisition program was set up to implement this policy. The program identifies areas that can be � used to catch storrmNater and hold it so that it does not flow direct1y' into the city's sewer system, causing flood- ing and backups. These ponds allow the water to be , gradually drained away. C.IMPAGT ON OPERATING COSTS � None of the projects in the PCI for sewers will signi- ficantly affect operating/maintenance costs, that is, an - increase or decrease of 2% or greater in the annual cost . of operating and maintaining the city's sewer system. � i 1 � 86 i i . 1 5.2.3 PARKS AND OPEN SPACE FINANCIAL BACKGROUND � , The financial background figures for Parks are shown in the followin� tables. The program proposes an increase of 55� over previous appropriations. A closer look at the figures reveals that most of this increase is due to � Regional Parks monies. They are used to develop or rehabilitate regional parks within St. Paul . The Metro- politan 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 projects in its ' jurisdictions. These grants, therefore, reflect deci- sions made at a regional rather than at a purely local level . CQmo Park reha�ilitation is the most ambitious pro�ect. CIB makes up 3n% of the total parks program. This is � also an increase of 53% over the past five years. CD is much less significant in program financing, constituting � only 10% of the program total . In the past it made up 25� of the appropriations. It may be that CD will play a greater role in the program as budgeting decisions are made. The remaining program resources are mostly grants from � federal and state .sources. Together they comprise 9� of the total projected costs. This is practically identical to previous figures. If these resources shrink or � disappear in the future, the parks program will need sub- stantial readjustment. PASI- APPROPRIATIONS (In Thousands) � Source Year 1976 1977 1978 1979 1980 � CIB ' 606 1 ,388 2,879 1 ,912 2,060 CD 1 ,485 1 ,717 1 ,653 811 1 ,549 Reg. Parks 1 ,406 500 3,856 � 1 ,431 2,163 � Other 0 742 480 267 1 ,668 Total 3,497 4,347 � 8,868 4,421 7,440 PROGRAM COSTS (In Thousands) � Source Year � 1982 1983 1984 1985 1986 CIB 3,557 2,960 1 ,683 2,838 2,458 CD 761 221 1 ,310 270 951 � Reg. Parks 5,715 5,445 3,545 6,145 2,445 Other 648 1 541 777 822 291 Total ,681 10� 7,315 10,075 6,145 � 87 � � � ' PROGRAM � ' A.TECHNICAL 6ACKGROUND � 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 revital- ization 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 improvement contri- buted 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. � 4.Distribution of Projects. Projects were distributed to ensure that improvements were not concentrated in any one area of the city. ' S.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 funding. Estimates of , amounts are given for those sources which are competitive grants, such as Land and Water Conservation (LAWCON), Legislative Commission on Minnesota Resources (LCMR), and Urban Parks and Recreation Recovery (UPARR) even ' though there is no assurance that these grants will be awarded, or even that the programs will still be in existence. � � ' 88 � � . , B.PROJECT COMMENTS The top priority for the Div�ision is the rehabilitation � . of the Parks Central Service Center. However, it falls into the second need category--Maintain Support Systems. ' The Parks Centra1 Service Center is the primary location for most of the equipment repair, storage, and shop , operations which support the parks and recreation system. Some of the activities include: equipment storage and repair, sheet metal fabrication, sign-making, painting, � and wood-working. The facility is a patchwork of addi- tions to an old core building which was originally a horsebarn during the trolley car era. The building is , poorly laid out, has been virtually unimproved in the last 20 years and is in critical need of extensive rehabili- tation. Improvements to the bui1ding are essential to improve the efficiency of operations, reduce excessive � , energy costs and ensure provision of effective support services for �he park and recreation system. Regional parks and open space facility improvements which , are located in St.Paul are listed separately, since all of the timing, phasing and funding is included in the Metropolitan Council 's Capital Improvement Program for � regional parks. One hundred percent of the funding for rehabilitation and deve1opment of these regional facili- ties will be provided by the Metropolitan Council ; � although operating costs are the city's responsibility. C. IMPACT ON OPERATING COSTS ' Reduction of operation and maintenance costs for the Division was considered in assessing the need for the various park and recreation projects in the PCI; most of the rehabilitation projects include energy conservation ' measures in buildings and use of materials �vhich will result in less maintenance. The only major projects which may result in increased , operation and maintenance costs are those which are to be funded by the Metropolitan Council . A nur�ber 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 fo�� , the facilities. � : , 89 ' � Credits , ST. PAUL CITY Liz Anderson David Lanegran PLANNING COMMISSION * Clark Armstead Joseph Levy ' * Ralph Brown � Dave McDonell James Bryan �* Joseph Pangal * Carolyn Cochrane * John Schmidt Thomas Fitzgibbon Gayle Summers ' Sam Grais �anabelle Taylor Glen Hanggi Adolph Fabler Sr. Alberta Huber * Robert Van Hoef � �*David Hyduke " Richard Kadrie Nelsen Karns **Jane Nelson , **Chairman Ca ital Im rovement Pro ram Subcommit ee � P P g t ' * Member, Capital Improvement Program Subcommittee � ADMINISTRATION AND James J. Bellus, Director of Planning and Economic Development POLICY DIRECTION Peggy A. Reichert, Deputy Director, Planning Allen Lovejoy, Principal Planner � RESEARCH � PLANNING Patricia James, Planner-in-Char e g , Division of Parks and Recreation Judy Barr ' Department of Public Works Daniel Dunford Donald Sobania Michael Eggum James Stahnke ' Roy Grieder Kent Schonberger ' , , ' � , � 90