RPVCCA_CC_SR_2015_02_17_06_Modified_2015_CIP_ProcessCITY OF
MEMORANDUM
LJ
aIlk.x RANCHO PALOS VERDES
TO: HONORABLE MAYOR AND CITY COUNCIL MEMBERS
FROM: KATHRYN DOWNS, ACTING DIRECTOR OF FINANCE
MICHAEL THRONE, PE, DIRECTOR OF PUBLIC WORKS
DATE: FEBRUARY 17, 2015
SUBJECT: MODIFIED 2015 CIP PROCESS (SUPPORTS 2014 CITY
COUNCIL GOAL NO. 2, PUBLIC INFRASTRUCTURE)
REVIEWED: CAROLYNN PETRU, ACTING CITY MANAGE
RECOMMENDATIONS
Approve in concept a modified 2015 Capital Improvement Plan (CIP) process.
BACKGROUND/DISCUSSION
In years past, the City created a recommended list of projects using an internal (city
department) CIP review team to review progress of the current budgeted capital
improvements and identified new projects that may be warranted based on community
and City Council input. Utilizing the prioritization factors outlined in the CIP, the CIP team
would prepare a draft 5 -year plan for the City Council to consider funding in the upcoming
municipal budget (see Appendix A for a more thorough description of the typical process).
This year, unlike many prior CIP planning cycles, the City is engaged mid -stream in the
updating of the 1989 Parks Master Plan, the 2004 Master Plan of Drainage, and the Trails
Network Plan. These three master plans will heavily influence the scheduling and
budgeting of current and future projects; however, they would not be included in the 2015
CIP process because the plans are expected to be adopted by the City Council without
adequate time to be included in the 2015 CIP.
Additionally, the recently formed Infrastructure Management Advisory Committee (IMAC)
is expected to be a key advisor to the City Council in the overall management of all public
infrastructure categories. The Committee has only just begun to be briefed on the eight
infrastructure categories they will be learning about and are not yet ready to provide a
recommendation of priorities in time for this year's CIP schedule as outlined on page 5 of
Appendix A. In the future, it is anticipated that the CIP review process and schedule will
6-1
MODIFIED 2015 CIP PROCESS
PAGE 2
be revised to include more civic engagement and the involvement of the IMAC.
Given this unique confluence of in -progress master plan updates and an infrastructure
committee that has just commenced its learning curve, your Finance and Public Works
departments are proposing to modify the typical CIP process for a single year (2015) that
will focus on the completion of current projects in design and construction and limit the
recommendation of new projects to start to those being driven by regulatory requirements
(such as projects related to public health/safety and operational upgrades to the Abalone
Cove sanitary sewer system) and those with federal -aid grant deadlines (typically street
rehabilitation projects). The City Council will receive a 2015 Five -Year Capital
Improvement Plan for its consideration; however, the plan will simply include less
proposed projects for FY15/16. The lighter 2015 CIP will allow staff to complete a number
of funded projects that have been carried forward from prior fiscal years. For your
information, we have attached an update on the active public improvement projects
currently underway.
This course of action will afford the IMAC the time to become fully conversant in our public
infrastructure needs and fulfil more effectively its mission to provide community input by
advising the City Council on matters concerning public works and infrastructure. The
Committee received a briefing in January on the proposed modified CIP process and
understands the reasons for the staff proposal.
It is therefore recommended that the City Council direct staff to proceed ahead in concept
with this modified approach for the 2015 CIP.
ALTERNATIVES
The City Council may delay the formulation of the 2015 CIP to the FY 2016/17 municipal
budgeting process or proceed ahead with the Year 2 projects recommended in the
second year of the 2014 CIP.
FISCAL IMPACT
The expense to prepare the 2015 CIP is included in the FY 2014/15 budget of each
department and no additional expenses are anticipated at this time.
As a result of the modified 2015 CIP process, the estimated June 30, 2016 balance of the
CIP Reserve (the end of FY15/16) will likely exceed the City Council policy threshold of
$3 million. Staff expects that after the master plan updates are complete, the City Council
will have a list of projects to consider during the 2016 budget process that will likely
consume the excess CIP Reserve.
Attachments:
• Appendix A—Excerpt from 2014 Five -Year CIP
• 2014 CIP Update
6-2
APPENDIX A TO FEB Appendix
17, 2015 MODIFIED
CIP PROCESS STAFF
REPORT
!RANCHO PALOS VERDES
2014 Five -Year
Capital Improvement Plan
CLOUDY AREAS ARE THOSE
TYPICALLY USED FOR ANNUAL CIP LIST � 6-3
Appendix
TABLE OF CONTENTS
INTRODUCTION 3
FUNDED PROJECTS 10
FIVE YEAR CIP FUNDED LIST 9 9
BUILDINGS AND OTHER FACILITY IMPROVEMENTS
12
INTANGIBLE CAPITAL OUTLAY
22
ROADWAY INFRASTRUCTURE
24
UTILITY UNDERGROUNDING
38
STORM DRAIN SYSTEM
40
LANDSLIDE MITIGATION PROJECTS
47
STORM WATER QUALITY
49
SEWER PROJECTS
52
RECREATION, PARKS & OPEN SPACE
57
UNFUNDED PROJECTS 67
UNFUNDED LIST 68
BUILDINGS AND OTHER FACILITY IMPROVEMENTS
69
INTANGIBLE CAPITAL OUTLAY
73
ROADWAY INFRASTRUCTURE
75
UTILITY UNDERGROUNDING
83
STORM DRAIN SYSTEM
87
LANDSLIDE MITIGATION
92
RECREATION, PARKS & OPEN SPACE
94
2
•
Appendix
INTRODUCTION
A Capital Improvement Plan (CIP) is a guide toward the efficient and effective provision of public
infrastructure and facilities. Programming capital facilities and improvements over time can
promote better use of the City's limited financial resources, reduce costs and assist in the
coordination of public and private development. In addition, the planning process is valuable as a
means of coordinating and taking advantage of joint planning and development of facilities and
infrastructure where possible. Careful management of these assets keeps the City poised for
flexible and responsive strategic planning that allows the City to proactively prepare the groundwork
for capital projects so when funding opportunities arise, a plan is ready to be implemented. By
looking beyond year-to-year budgeting and projecting what, where, when and how capital
investments should be made, capital planning enables public organizations to maintain an effective
level of service for the present and future population.
THE CAPITAL IMPROVEMENT PLAN (CIP)
The result of this continuing planning process is the CIP, which is the City's five-year plan for
infrastructure projects. The CIP addresses the City's needs relating to the acquisition, expansion,
and rehabilitation of long-lived facilities and infrastructure. The CIP serves as a planning instrument
in conjunction with the City's General Plan and the City Council's Goals to identify needed capital
projects and coordinate the financing and timing of improvements in a way that maximizes the
return to the public. It provides a planned systematic approach to utilizing the City's limited financial
resources in the most responsive and efficient manner to meet its service and infrastructure needs.
It serves as the "blueprint" for the future of the community and is a management and planning tool,
rather than a binding document.
The underlying strategy of the CIP is to plan for necessary land acquisition, construction and
maintenance of public facilities necessary for the safe and efficient provision of public services in
accordance with City policies and objectives adopted in the City's General Plan. A critical element
of a balanced CIP is the provision of funds to both preserve or enhance existing facilities and
provide new assets to respond to changing needs and community growth. While the program
serves as a long range plan, it is reviewed and revised annually in conjunction with the budget.
Priorities may be changed due to funding opportunities or circumstances that propel a project to a
higher importance. Along the way, projects may be revised for significant costing variances.
The CIP is primarily a document that assists in addressing the City's long-term needs. As such,
the projects and their scopes are subject to change from year to year as the needs of the community
become more defined and projects move closer to final implementation. The adoption of the CIP
is neither a commitment to a particular project nor a limitation to a particular cost. As a basic tool
for scheduling anticipated capital projects, it is also a key element in controlling future capital
financing. For this reason, the CIP includes some "unfunded" projects in which needs have been
qualified, but specific solutions and funding sources have not been determined.
When adopted, the CIP provides the framework for the City's management team and the City
Council with respect to investment planning, project planning and the managing of any debt. This
document is independent of the City Council's goals and is intended to serve as a mid-term planning
THE CIP PROCESS
The capital improvement plan and budget is the result of an ongoing infrastructure planning
process. Infrastructure planning decisions must be made with regard to both existing and new
facilities and equipment. For existing facilities, the planning process addresses appropriate capital
renewal strategies and repair -versus -replacement of facilities. New service demands are also
considered since they often affect capital facility requirements. Planning for the five-year CIP
period and subsequent years, includes linking the General Plan to the capital plan requirements,
conducting needs assessments and allowing for flexibility to take advantage of opportunities for
3
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Appendix
capital investment. The FY14-15 through FY18-19 CIP is developed through input from
professional staff, citizens of Rancho Palos Verdes, and elected or appointed City officials.
CIP REVIEW TEAM
A CIP Review team is responsible for annually reviewing capital project requests and providing
recommendations to the City Manager. This team is comprised of staff from the Office of the City
Manager, Finance, Public Works, Community Development, and Recreation and Parks
departments, and the City Attorney. This team conducts an in-depth analysis of the impact of the
CIP on present and future cash flows and financial obligations, as well as the City's ability to
finance, process, design, and ultimately maintain projects. The team will also analyze the fiscal
impact for each individual project; including future maintenance and replacement costs, associated
monetary benefits (e.g. future maintenance savings), as well as any applicable future revenue
opportunities. The team meets periodically throughout the year to evaluate the progress of
projects, and examine future needs of the City.
The overall goal of the CIP Review Team is to develop CIP recommendations that:
■ Preserve the past by investing in the continued upgrade of City assets and infrastructure;
■ Protect the present with improvements to City facilities and infrastructure;
■ Plan for the future.
Projects are identified by staff, professional consultants, residents and/or elected officials. There
are typically more proposals than can be funded in the five-year CIP period, so the team conducts
an internal project ranking process. The criteria used in this internal ranking includes, but is not
limited to, safety, support of essential City services, support of City Council's goals, economy and
efficiency, outside funding committed (or eligible for), and community quality/sustainability.
Projects are prioritized based on the criteria outlined in this plan in the following section. If a project
receives a lower ranking, it just means that other projects in that period of time are more critical for
the City to address. While ratings are important in determining recommended projects, the realities
of the City's financial situation are critical to ail decisions.
Safety: Enhance or improve the overall safety of the City and delivery of services. Protect the
health and welfare of residents.
Supports Essential City Services: Maintenance and development of existing or new facilities and
infrastructure which allows the City to deliver essential services to residents of Rancho Palos
Verdes.
Supports City Council Goals: Supports the goals annually established by the City Council in the
CITY COUNCIL. Meets citywide long-term goals and is in compliance with the City's General Plan.
Economy and Efficiency: Maintain and enhance the economy and efficiency of providing services
in Rancho Palos Verdes. This criterion would include projects which improve business processes
and overall efficiency while also evaluating environmental impacts.
Outside Funding Committed or Eligible: Support a project which outside funding has been
committed to or may be obtained through restricted revenue sources.
Community Quality/Sustainability: Maintain and enhance the infrastructure and services which
supports our residential and business community. This criterion would include projects which
preserve and enhance the overall quality of life in Rancho Palos Verdes and projects which ensure
economic viability to support a the community.
4
• •
Appendix
THE CIP CALENDAR
August -October Departments prepare CIP requests
November- January CIP Team reviews requests
February -May Recommendations developed to be included in the Five -Year
Model and Draft Budget
May -June Planning Commission Review
May -June Recommendations presented to the City Council for approval
Additional forms and methods of public outreach will be conducted as directed by the City
Council.
PROJECT LISTS
The CIP includes a comprehensive listing of all projects contained in the Five -Year Plan and also
projects beyond the five-year period. Detailed project sheets are contained in the plan for all
projects included in the CIP. Another list of unfunded projects is also contained in the plan to
highlight quantified projects beyond the five-year period. Projects which are included in the CIP
were evaluated based on the criteria approved by the City Council and are in compliance with the
goals set forth in the City's General Plan. Application of these criteria ensures that each project
recommended for Council consideration does indeed support the policy objectives of the City's
long-term planning documents and identifies a basis for scheduling and allocation of resources.
Cost estimates have been developed for each project based on preliminary project descriptions,
and include all estimated costs for land acquisition, permits and inspections, project management
and project engineering, consultant design, construction, utilities, information technology
infrastructure and other associated project fees, Estimates are in today's dollars.
CAPITAL IMPROVEME
Time Period
The Finance Department, in cooperation with all other City Departments and the City Attorney,
shall produce a working document designed to identify capital needs annually in conjunction with
the budget process. This Five -Year Capital Improvement Plan (CIP) is submitted to the City Council
to utilize in reviewing and prioritizing capital projects. After adoption by Council during the budget
process, the CIP becomes the City's plan for capital improvements for the next five years, adjusted
annually.
Type of Project
Definitions
Capital asset: An asset with a cost in excess of $5,000 and an expected useful life of more than
one year, such as automobiles, equipment, and furniture. These items will continue to be included
in the operating budget. Items such as automobiles, minor equipment, and furniture will continue
to be accounted for and funded using the Equipment Replacement Fund and are not included in
the capital improvement plan.
Capital project: A project expected to have a useful life greater than ten years and an estimated
cost of $100,000 or more. Capital projects include the construction, acquisition, or major renovation
of buildings, roadways, utility systems, or other structures, purchase of land, and major landscaping
projects.
5
6-7
Appendix
Projects meeting the above definition will be included in the CIP document in addition to the City's
budget document. The information will be tied to the capital budget and totals for each project in
the CIP will be included in the capital budget.
Selecting the Projects for the CIP
The comprehensive capital project planning process has the following essential components:
• The General Plan (Long-term Plan - 10 Years)
• The Capital Improvement Plan (Mid-term Plan - 5 Years)
• The Capital Budget (Short-term Plan - 1 Year)
• City Council Goals (Long-term and Short-term evaluated each year)
All projects selected for the CIP should be consistent with the goals identified by the City Council
or as outlined in the City's General Plan. The project selection process strives to achieve a
balanced plan for the community to include all necessary and high priority projects, while also
enhancing City services and facilities.
Operating Budget Impact Identified in the CIP
The operating impact of proposed capital projects, including personnel, operating expenditures,
capital outlay, and debt service, as applicable, will be identified in the CIP document and considered
in preparing the annual operating budget and Five -Year Financial Model,
Moving Projects from the CIP to the Capital Budget
All projects approved in the annual capital budget are appropriated at the estimated cost to
complete the project. At the end of each fiscal year, the remaining appropriation for uncompleted
portions of the project will be carried forward to subsequent fiscal years.
Staff will identify the estimated costs, potential funding sources, operating impact, and project
schedule for each capital project proposal before it is submitted to the City Council.
Staff will coordinate development of the capital improvement budget with the development of the
operating budget. All costs for internal professional services needed to implement the CIP will be
included in the capital budget as part of the budget document for the years the CIP is to be
implemented.
Cost tracking for components of the capital improvement program will be updated semi-annually to
ensure project completion against budget and established time lines.
Funding of the CIP Reserve Fund
City Council Policy No. 41 regarding the City's Reserves provides for a minimum CIP Reserve level
of $3,000,000 for emergency projects, the transfer of the total annual Transient Occupancy Tax
(TOT) revenue into the CIP Reserve, and the transfer of any prior year General Fund favorable
expenditure variance to the CIP Reserve. The TOT revenue for FY14-15 is estimated to be about
$4 million.
Definition of Capital Budget Year
A capital budget year runs concurrent to the operating budget fiscal year beginning July 151 and
ending June 30tH
Types of Financing
The nature and cost of the project generally determines the financing options as do projected
revenue resources. The following financing instruments could be used in the following preferred
order:
■ Outside funding that does not require repayment, including grants, federal, state and
county restricted funding (i.e. transportation funding), and donations;
t1
• Developer Fees;
■ City restricted revenue imposed by voters (i.e. environmental excise tax, storm drain user
fee);
Accumulated Fund Balances in Restricted Funds;
■ General Fund;
■ Debt secured by a Restricted Revenue Source; and
• General Obligation Debt.
Remaining Balances
It is the City's policy to apply restricted funding sources after a project is completed and final cost
is identified, or at the close of each fiscal year, whichever occurs first.
Evaluation of Capital Projects
Capital project and program reviews are to monitor existing project performance and to update the
Five -Year GIP. Each project must be actively managed and semi-annual reports on the physical
and fiscal status of each project should be made available to the City Council in conjunction with
the budget adoption and Mid -Year Financial Review.
Green Building Standards
The City of Rancho Palos Verdes requires the incorporation of green building principles and
practices into the design, construction, and operation of all City facilities, and to evaluate all land
purchases for future development on the basis of reducing environmental impacts whenever
feasible.
Standards for Maintenance
It is important to have standards in place for the various infrastructure systems throughout the City
to maintain this investment and be positioned to provide adequate services for the residents of
Rancho Palos Verdes. Staff will develop maintenance standards and schedules as appropriate.
Contingency Policy
The need for contingencies will be evaluated with each project and be included in the CIP on a
case-by-case basis.
Project Change Orders
Project change orders will be made in accordance with the policy stated in Section 02.44 of the
Municipal Code.
GENERAL PLAN GOALS
The goals stated below are included in the City's General Plan which serves as the City's long-term
strategic planning tool. All CIP projects should contribute to fulfilling one or more of the goals listed
below.
Natural Environment Element
• It is the goal of the City of Rancho Palos Verdes to conserve, protect, and enhance its
natural resources, beauty, and open space for the benefit and enjoyment of its residents
and the residents of the entire region. Future development shall recognize the sensitivity
of the natural environmental and be accomplished in such a manner as to maximize the
protection of it.
Socio/Cultural Element
■ The City shall strive to protect and preserve all significant archaeological, paleontological
and historical resources within the City.
7
Appendix
• •
Appendix
Cultural Resources
■ The City shall strive to protect and preserve all significant archaeological, paleontological
and historical resources within the City.
Current Social, Service, and Cultural Organizations
d Work toward a coordinated program to aid in matching the facility needs of the many and
diverse groups in the community with existing and future facility resources throughout the
City.
Social Services
• Encourage programs for community involvement, participation, and action to minimize the
sense of isolation and powerlessness felt by many individuals in the community.
■ Encourage programs for recreation, social services, and cultural and educational
achievement.
■ Encourage a framework for interaction among the four cities of the peninsula and between
the peninsula and its surrounding communities to solve common problems.
Urban Environment Element
■ It is the goal of the City to carefully control and direct future growth towards making a
positive contribution to all elements of the community. Growth in Rancho Palos Verdes
should be a cautious, evolutionary process that follows a well -conceived set of general
guidelines which respond to both holding capacity limitations for the region and
environmental factors on the peninsula.
Activity Areas
■ It is the goal of the City of Rancho Palos Verdes to preserve and enhance the community's
quality living environment; to enhance the visual character and physical quality of existing
neighborhoods; and to encourage the development of housing in a manner which
adequately serves the needs of all present and future residents of the community.
■ The City shall discourage industrial and major commercial activities due to the terrain and
environmental characteristics of the City. Commercial development shall be carefully and
strictly controlled, and limited to consideration of convenience or neighborhood service
facilities.
■ The City shall encourage the development of institutional facilities to serve the political,
social, and cultural needs of its citizens.
■ The City shall endeavor to provide, develop, and maintain recreational facilities and
programs of various types to provide a variety of activities for persons of all age groups
and in all areas of the community.
■ Agricultural uses within the City shall be encouraged, since they are desirable for resource
management and open space.
Infrastructure
• It shall be a goal of the City to ensure adequate public utilities and communications services
to all residents, while maintaining the quality of the environment.
■ It shall be a goal of the City to provide residents with a safe and efficient system of roads,
trails and paths.
• It shall be a goal of the City to encourage the increased mobility of residents through the
development of an adequate public transportation system.
.� l
Appendix
Safety
• It shall be a goal of the City to provide for the protection of life and property from both
natural and man-made hazards within the community.
• It shall be a goal of the City to provide for the protection of the public through effective law
enforcement and fire protection programs.
■ It shall be a goal of the City to develop and enforce health and sanitation, emergency
communications, and disaster preparedness programs to ensure the overall health and
safety of all residents.
■ It shall be a goal of the City to protect life and property and reduce adverse economic,
environmental, and social impacts resulting from any geologic activity.
Sensory Environment
• It shall be the goal of the City of Rancho Palos Verdes through proper land use planning
and regulations, to provide for a quiet and serene residential community with a minimum
of restriction on citizen activity.
Palos Verdes peninsula is graced with views and vistas of the surrounding Los Angeles
basin and coastal region. Because of its unique geographic form and coastal resources,
these views and vistas are a significant resource to residents and many visitors, as they
provide a rare means of experiencing the beauty of the peninsula and the Los Angeles
region. It is the responsibility of the City to preserve these views and vistas for the public
benefit and, where appropriate, the City should strive to enhance and restore these
resources, the visual character of the City, and provide and maintain access for the benefit
and enjoyment of the public.
Land Use Plan
■ It is the goal of the City of Rancho Palos Verdes to provide for land uses which will be
sensitive to and enhance the natural environment and character of the community, supply
appropriate facilities to serve residents and visitors, promote a range of housing types,
promote fiscal balance, and protect the general health, safety, and welfare of the
community.
Fiscal Element
• It shall be a goal of the City to hold the property tax to a minimum and to continually explore
and analyze the advantages and disadvantages of alternate or new sources of revenue.
• It shall be a goal of the City to explore cooperative financing strategies that might be
undertaken in association with other jurisdictions.
■ It shall be a goal of the City to take maximum advantage of regulatory legislation to obtain
contributions, dedications and reservations (i.e., easements).
• It shall be a goal of the City to ascertain that all revenues generated by growth are sufficient
to cover costs related to growth.
• It shall be a goal of the City to thoroughly evaluate capital acquisition and operating
expenditures and their impacts before implementation of programs.
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