HomeMy WebLinkAbout1977-10-11 Info Packet•City of Iowa cite
MEMORANDUM
DATE: October 5, 1977
TO: City Council,. /
FROM: City Manager pN��/A►�/
RE: Letter to Council Candidates
Attached is a copy of the letter which was sent to all candidates for City
Council. As noted in this letter, a meeting will be held with the candidates
and the League of Women Voters on October 12, 1977, at 7:30 P.M., in the
Council Chambers.
0
Dear
October 3, 1977
n
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I am pleased that you are interested in serving the citizens of Iowa
City as a member of the City Council and have announced your candidacy.
The period between now and the qeneral election on November 0, 1977,
should serve as an educational period for the community, the staff and
the council candidates. 'With information, there can be a thorough
discussion of the problems and opportunities of city government. One of
the responsibilities of the city staff is to facilitate this goal.
Enclosed is a packet of information which has been reprinted from a
council member workshop sponsored by the National League of Cities.
Much of the information was prepared by council members in other commu-
nities. This information provides a flavor of the responsibilities of a
council member and the relationships that develop between staff and the
council.
In addition, the League of Women Voters has agreed to sponsor a short
course on local government for all council candidates and the staff on
Wednesday, October 12, 1977, 7:30 p.m. in the Council Chambers at the
Civic Center. This program will provide an opportunity for you to
receive from the staff up-to-the-minute information concerning programs,
goals and problems. In addition, other members of the community will
make presentations concerning the initiative and referendum provisions
of the Charter, citizen participation and the role of the council member.
No candidate for public office will make a presentation except that
opportunities will be provided for questions. Perhaps most importantly,
both the candidates and the staff will have an opportunity to meet
Informally.
A rather extensive collection of information concerning many aspects of
city government is being prepared for your use. The material will be
distributed at the meeting.
It is expected that this session may stimulate additional questions.
Therefore, if you wish to meet after the meeting to generally review
your concerns and discuss other current issues of city government which
may not have been fully explored at the meeting, please give me a call
so that an appropriate time may be arranged.
Oct. 3, 1977 • •
Page 2
The Code of Ethics of the city management profession provides that the
manager shall refrain from participation in the election of the members
of tine employing legislative body and from all partisan political activ-
ities which would impair performance as a professional administrator.
To these principals I completely subscribe. A copy of the Code is
enclosed.
The city staff and I will be supportive of all council candidates to the
extent to which we can provide the best and most complete Information
possible. It is imperative that all candidates be able to speak and the
council members later serve with a comprehensive knowledge of the issues
of city government. We hope to see you on the 12th and later meet with
you to provide such other assistance as you may desire.
Sincerely yours,
Neal G. Berlin
City Manager
Enclosures
•ity of Iowa Cit •
MEMORANDUM
DATE: October 4, 1977
TO: City Council
FROM: City Manager
RE: Information You Requested on Pros and Cons of Public
Bargaining
Attached are copies of four recent articles
covering most of the arguments for and against
public bargaining. We have highlighted them if
you don't have time to read all. The California
school bargaining law requiring disclosure of
issues rather than complete access to negotiations
is explained in the League of Women Voters'pub-
lication.
Also available is the report on public bar-
gaining in Florida which is mentioned in two of
the attached articles. It can be obtained from
the City Manager's office.
U
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Quality of Work Center and theolute for Social Research
(University of Michigan). The employees of the division have
voted overwhelmingly to participate in the project which will
involve formation of a management -employee committee
within the division in improve service delivery, the quality of
working life of those in the project, and to develop approach.
es, techniques and methodology usable in other public and
private organisations.
In sum, the state Productivity Program places heavy empha.
new L/NRS. Neporl , ; ;
I'hr nra•r,l I SIRS .Spa, sal Rrpurl."If.ui.anliq� i� in lruldir: flrlp
ur 16nJ/ma r'.'. lir pr. NamIJ ll. Alai hu.niirr M.
r rc'Im. llwidu S,haat IfuurJ% A,,wiation. uuunuu sera firm-
rrvo n•eull, al "haul mleulialiom in the %fill.• from the rnan.
ot•,'lla•Ir• Ianlal'r /.mesh. C'upie%este al'ailuhle 111 15 .l.I 1 NI Its.
1020 Eye .Sl. N.II'.. Steil,- ala ll'a hinelon. P.C. 20000.
7'he irlliodwlian I,l Ow panll,lrl(l n',I, „•lithn Irl' Sam
%agoria. usws Pirrrtnr, alld lull....,.
IN TilC uecnue of the Seventies public officials at all levels of
government have experienced increasing pressures to open up
governmental processes and to broaden participation. While
some have welcomed this evidence of growing public interest
in governmental activities, others have been concerned about
possible complications and delays resulting from changed
procedures. The public's right to know and to be heard arc
essential ingredients in the dcumciatic process, but there is
sometimes a price to be paid in fulfilling the obligation.
Urr.u.ClUYL BARGAINING, which is steadily growing in govern-
ment, traditionally involves negotiating behind closed doors
and participation by only two parties—labor and manage.
meal. I_gge sutras of public funds are allocated in such delib.
emtinns and while citizens do have the opportunity at election
time to call their elected representatives to account for their
closed door bargaining decisions, this is after the fact.
From time to time here have been wispy hints that such
public interest organizations as Common Cause and the
League of Women Voters may aim their spotlight soon on
the governmental bargaining process. Such efforts have ap-
parently not yet token much hold because the public gen-
erally has not been too interested in municipal, county and
stale labor relations. Wage and bcnclil agreements have re.
ceived sonic notice, but have been homogenized in the large
overall budgets and their significance rarely noted.
But this, too, is changing. The economic crunch that has
hit taxpayers and governments has brought about a new pock-
ctMn%k interest, 1 Wiese. in labor relations. There is another
X 5
notice for LMRS pupchasers
Because of the growth in volume of orders and correspond.
care, LMRs has ended its Standing Order List for new publl.
cations. The time necessary for keeping up with changes of
addresses, billing and collecting has made the practice
uneconomic. For this reason, starting with the Special Re-
port on bargaining in public, orders will be handled on a
request basis only.
In closing out the List, i.mks wishes to thank those who
were concerned about receiving all our publications and
hopes you will continue to order those which you believe
will be helpful. T'he address is I620 Bye St. N.W., Suite 616.
Washington, D.C. 20006,
sls on the humaoticnt but it is too early to claim or meas-
ure the extent of success in these efforts. Levels of trust appear
to have increased, and open and regular communication is
channeling problems toward better and quicker solutions.
[here also appeals In be ❑ greater realisation among the
employee organizations and their membership that coopers.
tion in working toward improved governmental performance
at lower costs may be inevitable if public opinion and legisla-
tive support ism be obtained for general salary increases.
in 'hargalning in Pupell
contributing incentive— the cynicism of some citizens about
public hodic% generally has caused cuatern about the inter.
play of individual political ambitions, union political action
and labor relations settlements. There are questions being
inked about implications of now discovered contract obliga-
tions which were not noted at the time of enactment. One
question is whether these "mistaketi" would have happened if
the public had been in on the proceedings.
There were sonic interesting signs of voter interest around
the country in 1975. In Seattle voters turned out to support
the mayor in a scrap with the local fire fighters union; in San
Francisco voters registered unhappiness with it mayoral wage
settlement by casting their votes in the opposite direction in
charter referendums; in New York City voters supported a
charter amendment to require a full statement of wage and
bcnclil settlements.
'there was action in State Ilouses, tau. California, in coact.
ing a new law for public school negotiations, required that
both labor and management proposals be put before the pub-
lic for several days before negotiations could begin; the Ore-
gon Legislature gave elected student body representatives the
right to lake part in "meet and confer" negotiations between
public college administrations and their faculties; and in enact.
ing another "Sunshine" law, in Florida, the Legislature ordered
the doors thrown open on all city, county, state and school
negotiations. In Kansas City, Missouri, the city accommodat-
ing to newspaper interpretations of the Slate "Sunshine" law,
pressured a reluctant local of the American Federation of
Stale, County and Municipal Employees Union into bargain-
ing in public last year. This year, the experiment is being re-
peated with a local of the fire fighters. (110th union, recently
came In agreement with the city after public negotiating ses.
sinns.) There may be others, too.
Obviously, things arc happening which suggest reconsidera-
tion of lime -honored ways of carrying out collective bargain.
ing, particularly where it involves disbursal of public funds.
Unfortunately, very little has been written on the scatterer[
experiences thus far. For this reason, I.MkS I% pleased to offer
the following report, the first significant analysis of the Florida
experience in school bargaining.
The author, Dr. Donald R. Magruder, is Executise Director
of the Florida School Boards Association. In his career, he
has been a leacher, a school administrator, and a bargaining
table negotiator in the field of education. His study discusses
management assumptions and concerns about "goldfish bowl"
bargaining and the favorable actual experience in the first year
of the new law.
But this special report is lint intended m smggest that all
involved in gm'crnn%cnl:d colieclive hargainmg are ready to
join hands in singing the paaises of "sumil ine" negotiating
while denouncing the much larger number committed to nego-
lialing "in the shade:' There are strung voices and warnings
N.M. Judge orders open sessions
In New Mexico Santa Fe District Judge Edwin L. Feller has
ruled that public employee wage discussions of the Santa Fe
Board of Education must be open to the public. The Board
held a closed meeting April 15, 1975, to discuss budget allo-
cations for tea:bni salaries. State Attorney General Toney
Assays sued to enforce the open meetings law and Judge
Feller ruled for the stale. Analyst hailed the decision "be.
cause the public can see what's happening and the general
feeling is that the demands of the unions are unrealistic."
The Santa Fe Board is appealing, arguing that the coling
will inhibit it from giving instructions to negotiators or to
the school superintendent. Meanwhile, Government Em.
ployee Relations Report noted that school boards in Al-
buquerque and Gallup. N.M., ore already bargaining in
public.
the other way.
A comprehensive national survey carried out in 1972 by the
New York State Public Employment Relations Board came to
the firm conclusion that opening up negotiations — or subse-
qucnt third party interventions — would disturb and deter the
collective bargaining process. Sonne excerpts from the report
will be found in Appendix 11.
More recent o pusdtion came from the presidents of two of
the largest public emp oyce unions. Jerry Wurf, president of
the American Federation of State,. County and Municipal Ens -
10 CSUnion, ArL-CSO, was quoted by Neal Peirce, newspaper
columnist, on the subject, in this way. Peirce wrote that Wurf
declared goldlish buoargaining "doesn't work; it can't
work."'Ilie presence of [tic press or television cameras in a
negotiating session Inn the ellecl tit "waving a (laked girl at a
gory who% [Well locked up lura year — they (the politicians)
go crazy." tic added [hal open haigaining "does Ihc same
thing lar our (onion) staff", which is likely to threaten it strike
If pressed by repollcrs. •The nest step is that our people are
out un Ihc strccl and they dun't cern know what they're do-
ing;' Watt said.
'1 he presideol of the International Association of Fire Fight.
ers, Ary. -Cud, W. Jiow:rtd McClennan. also president of the
Public Ifugsluyee Deparintent of the Art: u to. was quoted by
Peine lhusly: "When yeti re down In nuns and hulls and you
have two or three issues and you're in a room working to re-
solve it," having the negotiating sessions open In pnbfic view
"could really hurt:'
So there it is. The report suggests a way of capitalizing and
expanding on the new public interest in labor relations. On
the other hand, there may be some new problems down the
road :as a result — Will residents be satisfied with merely
watching the proceedings? Won't there be pressure to move
to the b:ugaining table' If it is already demonstrably difficult
to bring only Iwo parties — labor and management -- to.
gclher on an agreement, will the bargaining process he smoth.
ered heyond resuscitation if more parties are admitted to the
tale? At what point does government sacrifice efficiency in
labor relations for the honored gods of openness and partici-
paliun in politic processes? Open covenants, openly arrived at
- a[ what price?
pension warnings holsted In D.C. and Colo.
A study of 43 major cities by the Graduate
School of Business Administration at the
University of Michigan and Coopers and
Lybrand, national accounting first, released
in Washington last month was critical of
accounting and disclosure practices, charging
in particular that unstated retirement obliga.
tions for large cities often exceeds 5100 mil-
lion and goes up to SI billion. "The funding
of these obligations in the future will be a
serious drain on municipal revenues which
are alaady inadequate." the report warned.
Meanwhile, a task force study led by
Gerald E. Bellows, Finance Director of
Boulder, Colo., or poli" and fire pension
funds in Colorado, pointed out that there
are 146 separate police funds covering 3400
policemen and 179 fire pension limits cover-
ing about 2000 paid and 3500 volunteer fire
fighters. The task force, which included
members of the Colorado Municipal League
and representative of police and firemen
organiralions, said:
Ida Klaus named
Ida Klaus, veteran labor relations profes-
sional, was appointed and confirmed last
month its it member of the New York State
Public Employment Relations Board for a
five-year term. Miss Wool, attorney, negotia-
tor and arbitrator, was solicitor of the Na-
tional labor Relations Board from 1948 to
1954, wan counsel to the New York City
Department of Labor from 1954 to 1962
writing the fust Executive Order on collce.
live bargaining for city employes, and Then
worked for the New York City Board of
Education heading labor relations nctivily.
"The task force concluded that most po-
lice and fire pension funds in Colorado are
in severe financial difficulty . , , Unless your
police and fire dcp:olnsenls ale relatively
young and contributions are at the maximum
level allowed, municipal officials should as.
sume that they have an actuarial deficiency
and that it is probably significant ... Munici-
pal officials should recognivc that the pros.
sure for increased benefits will continue .. .
If improved benefits are gyring In be granted,
insure that the long term costs are known
and that a method for paying these cosh is
provided ... It is dillicutt to justify and ex.
pensive to finance and administer 325 cepa.
rate police and fire funds:"
Mlelke In Miami, wesiey In Spokane
Dean Mielke, Director of Employee Rela-
lions for the State of Florida, has resigned to
accept the pall of Director of labor Rcla-
lions for the city of Miami, Fla., succeeding
Joel V. Lnnken. hlictke, president of the
National Public Employer Iabor Relations
Association, is rejoining a former colleague,
City Manager Joseph R. Grassie of Grand
Rapids, Mich. Grassie, to whom Mielke was
administrative assistant in Grand Rapids,
his been snored red City Manager of Miami.
On the West Coast, Roy Wesley, former
Employee Relations Director of San Fran-
cisco, has returned to Spokane, Wash.,
where he was formerly Assistant City Men.
ager. He is now Coordinator of Employee
Relations for the School Districts' Consar-
tium in Spokane, handling negotiations and
tabor relations generally for a group of
urban school districts.
ant reps gewdmu is nn
an invitation...
Nn vee rata
se onntoeedy
to meet1the of Itaor
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reteliont v0ni6onn IN
Labor Mamaoemnnl Rolahom, Ser:,ea NexLel'nl
poligmnen in city. cauls,
1620 Eye SI . N W., Washmgton. Is C 20006
em shoe lovermnmil. II
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concise repo,[ on Illusion •
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menta that level sours of
suetainl and reldinl eM
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>ro
Pusceyoin pklnhoma City. Wilkinson can be res ed :it 7075 N.W.
63rd, Oklahoma City, Okla. 73116, or phone, 4115/841.1591.
Wilkinson, as a student at the University of Minnesota, received
the Big Too Modal as outstanding scholar-whicic in 1937. 1 I has
won a number of other awards during his playing and coaching
career and has been a conuucniatm un the Iclevised NCAA Game of
the Week for the pact 12 years.
His gorcrmuent service includes chairmanship of the Citizens
Action Program of the National Council an Crime ;std DClin-
quency, a comultant to hath President John F. Kennedy and Rich.
ard hl. Risen, activities in Administration drug abuse programs,
physical fitness, youth affairs, the handicapped and Presidential
Scholars.
•
NPELRA commends pall plans
'the National Public Employer tabor Relations Association,
an organization of more than 200 city, county and state gov.
ernment negotiators, has adopted a resolution commending
deferred compensation plans. At Its recent convention in New
Orleans, the group adopted a resolution declaring such com.
pensation system "n viable supplemental compensation pro•
gram within the public service" and endorsed such plans as
"an effective personnel management tool in supplement to
other retirement plans mailable to employes."
hurptininle in pt4hlir-
FioPida city and county otticiais retiect mixed Views
by Roger Dahl, Assistant Dheeror, I.mRs and Afarge Shapira Varney, lornmr (.MRs Research Assistant
AS PUBLIC. OFFICIALS It all levels of government continue to
wrestle with the problems of achieving openness in govern-
mental decision-making, eliminating potential conflicts of in.
terest, and expanding citizen participation it is only natural
that the methods for determining wages, hours and working
conditions in the labor-intensive public sector also conic under
examination.
Increasingly, collective bargaining or its cousin, "meet and
confer," is becoming more common in the public sector. To a
large extent, the model for public sector negotiations has been
drawn from long experience in the private sector with the
National Tabor Relations Act. There, and in most public juris.
dictions as well, negotiations between the parties are con.
ductcd in private, with the public being made privy to what's
actually going on only in time of crisis—a strike or after
everything is settled. Even in these situations, full disclosnre is
more likely the exception than the rule.
The drive for openness in the public sector negotiations
runs smack against a wall of expert opinion in the labor rcla-
lions field which holds that the sophisticated bargaining
process is loo sensitive to he practiced in full public view.
Today, in the public sector, at lead, fesv, wmtld argue that
full disclosure of the Intal cm( of a scillement is inappropriate.
flowevcr, the exact timing of such disclosure would he de-
bated with vigor, with sonic arguing for public disclosure
before final ratification by the legislative body and union mem-
bership and others says only after everything is totally final-
ized, so as to assure no possibility of the agreement falling
apart during the ratification process.
Many, however, argue that disclosure of a lair accompli is
not sufficient—that the public should be allowed to sit in on
negotiations if it chooses. It is with [his type of proposal that
labor relations professionals become concerned, fearing that
the dynamics will become so much more complex that the
quest for agreement will be drawn out even more and may
well be almost impossible.
is general gmenmrenl Mudy launched
With these considerations in mind (.MRs decided to more or
less replicate in local governments a shldy undertaken by Don
Magruder, Executive Director of the Florida School Boards
Association. His review of the experience of Florida schools
with "sunshine bargaining" was published last year by (.MRs
in a Special Report, Bargaining Jct the Pahlic: urlp or flln.
drance.
Before reporting our results, it should be noted that the
1974 (Florida Public Employees Collective Bargaining Act,:
which requires that tire actual bargaining table sessions be
conducted in open sermons, does allow chief executives, their
negotiators and legislators to mcet in private to discuss Perim-
cicrs and strategy. Similarly, all work papers developed in
preparation for negotiations arc exempt from the state's free-
dom of information law.
Using virtually the same questionnaire as was utilized in
the school survey, i.MRs polled Florida county and municipal
officials --elected represenlalives, administrators and negotia-
tors—last year to see what their experience has been with l
bargaining in the sunshine. ;
Survey questionnaires were completed by 155 individuals I
from 34 counties and 82 municipalities. Of these, 26 were I
elected officials (mayors, county commissioners, local Icgisln- i
tors) and 129 wcrc appointed or career staffers (city or county
managers, personnel directors or labor relations specialists).
However, only 75 officials (8 elected and 67 appointed)
from 9 counties and 45 municipalities reported actual experi-
ence with sunshine bargaining.
It should he noted that in some cases those who reported no
experience with "sunshine bargaining" wcrc in fact bargaining.
but the public and press had never attended a session—hence
they reported no experience. In other eases, the reason was
Wisconsin tries open neDotiations
Wisconsin stale government negotiators and the Wisconsin
Slate Employes Union began bargaining for 24,000 workers
in public for the first time early last month. Jerry Nelson,
head of the state's Collective Bargaining Bureau, said, "We
don't know how it's going to work, but we're going to give it
a try." His aide, James Phillips, chief slate bargainer, added,
"We hope [here is no detrimental effect to openness. If open
bargaining is more promotive of a good settlement, it's an
experiment that can be Continued. If not, we want the oppor.
tunny to evnluale."
Toni King, executive director of the Associaliun, an affiliale
of the American Federation of Stale. County and Municipal
Employs, Art -rut, was more oplimistic. Ile said, 'The key
I% going to be public uwnrcness of what the hma tire. Right
from the soul, the public will be aware of why we're insisting
on what we're insisting on. (lased on the dmn, the public will
support us,"
0
simply that employees were unorganized—no bargaining waq
laking place.
The following analysis is based upon o review of those 75
ollicials who reported having experience with the process:
• rlcclyd ullirial+ f:uur upenurx
I. Seven elected officeholders (county commissioners, mayors
and councilmembers) had experience with sunshine bargain-
ing. Five favored bargaining in public and reported little diffi-
culty in operating under the process. They emphasized the
advantages of letting the public know what's going on and the
influence of the openness on modifying some of the more ex-
treme positions the union might take. From the supporters
there were these comments:
"Everyone knows what Is going on. There is no cover-up."
"Keeps the public Informed ar to the demands."
The two who saw open bargaining Its it disadvantage coul-
mcnlcd:
"The disadvantages are really to the taxpayer who rnnnage-
mn•ut rep,en•nt.r. The ability it, talk frankly or its compromise
on issues is really hard to do wish the press or people present."
"The employee organizations can force n rnagertent into
unfavorable positions by using to media as a .springboard for
emotional confrontation."
is managerial respmues nuclear
2. Responses from city and county managers were somewhat
inconclusive, Fifty -hyo percent (12 of 23) favored cominua.
tion of the sunshine provisions in the Florida law, but in re-
sponse to a similar question which solicited their preference
as to whether or not bargaining should be in public, 61 per-
cent (II of 23) said no. Sixty-five percent (15 of 23) re.
putcd no diflicully resulting from bargaining in public.
The management group saw advantages in public knowl-
edge of what was being negotiated and what positions both
parties took. Supporters commented:
"Public acrrss to meetings allows citizens and the press to
accurately report bargaining."
"!f the terms of ,nanagrinent'.s positions are reasonable, the
public will support those positions as finally respomible. This
marl becomes apparent at bargaining sessdons."
"The people who have to pay the bill have a chance to
know in advance what the union contract will cost tent."
"Both sides mors, candid, less frivolity, greater stability of
conntitnents—everything on the "cord."
Those who expressed dissatisfaction with the process stated:
"it prolongs negotiations. It hakes i.rres and points eno-
tional and polarizer pnhldc opinion."
"Interferes with in-depth analysis and hard -nose discussion
of i.rnws."
"Labor had knowledge of our po.oiiian and could start train
•
that point. Their A it,, bargaining when it i.r one-ehled."
"Media .ueayr public opinion without presenting all the
faa1.r.,,
• negaliators uppuse npruurw
3. Those involved directly with the negotiating process -44
chief negotiators, personnel directors, labor relations staff—
did not favor bargaining in public. Fifty-three percent were
in nppnsitinn to the law and the process generally. The nego.
tiators, while recognizing sono advantages in having an aware
public, were concerned shout the strategics involved in open
negotiating--Ihc effect of the unions "playing to the nmdia"
and the inability to candidly discuss positions. Interestingly,
however, 53 percent reported having no ditliculty as a result
of the how.
Those in favor of open bargaining reported:
"If the union bar (they almost always do) unreasonable
demands, the demands are brought to the public's attention
without the management having to initiate the action."
"Opportunity to communicate rity's position in a manner
that will enhance gaining public understanding and support
rather than the unions ,redia -oriented emotionalis,n when
negotiations aren't fining their way."
The negotiators who did not favor the process reported:
"Prolongs negotiations, hnore demands, ton much publicity,
increases cast of collective bargaining."
"The employee orhanhation can pack the room with sync
pathizerr and play far pre.rr and TV. Open ince ings do not
encourage management to present their best offer to 'level'
with employers."
The survey also dealt with public and news media attend-
ance at bargaining sessions. Sixty-nine percent of those having
experience with sunshine bargaining hcpnrted that observers,
numbering anywhere from I to 50 had attended at least one
negotiating session.
In 56 percent of the jurisdictions with sunshine bargaining
experience the press occasionally aucnded sessions and in IS
percent, members of the press were always present.
In summary, our results were not too dissimilar from Don
Magruder's earlier survey of Florida school officials. Elected
officials favor openness. Negotiators, both school and local
government varieties, prefer closed bargaining. However, the
majority in opposition was not a large one in either case. The
only groups that varied when compared were chief school
administrators, who clearly supported sunshine bargaining by
56 percent, as against city and county managers who show
some ambivalence.
One additional conclusion: A resiew of the sarvcy data
strongly suggests that !here is no paucity of seats available for
the media and public—their interest has not been great, at
least so far. This fact alone suggests a certain degree of cau-
tion with respect to the interpretation of our fording:..
LMRS-AASH plan week 1painina course top public manaueps
"Collective Bargaining for Public Mnnngers"
is the focus of a one-week seminar being
conducted by i mics and the American Asso-
ciation of School Administrators -National
Academy for School Executives at the Prom
Sheraton, Kansas City, Mo., August 1.5,
The seminar, designed to meet the needs
of bolls school administrators and general
purpose store and local government man
agers, will address preparation for and con.
duct of bargaining, contract language and
ndminiswation, grievance handling, and pic.
paring for medianion, fact -Ending and nrbi-
station. Facuhy includes Dean Welke, IN.
rector of tahor Relations, Miami, Fla., and
immediate past President, National Public
Employer [.:that Relations Association; Jim
Moran, Excculive Discerns, New Jersey As-
sociution of School Adminisbatms: hoc Sar.
Ihory, Associate Direcor, Naiiomd Academy
of School fiseculives; and Roget Dahl, t.sms
Assklza l Director.
Tuition for the seminar is $260 for AAS& or
uscm members, and $295 for non-members.
bees include registration, inslmUion and
materials. For further information, contact
Roger Dahl :n t.xlas.
a union view:
bargaining
in public brings changes top all Involved
by D,nabl S'lesoirk, ,monvi, Flwida P"lirr lirn'. deer A.,.tm w1ion
IT WAS LONG PERCEIVL, by labor relations practitioners that
collective haiguining negotiations had In he conducted behind
locked doors in order to create an atmosphere that would
encourage a free, uninhibited exchange between the two par-
ticipating patics. Representatives of hath labor and manage-
uncm feared that by opening the process la the public view
their po%itiun with Ihcir respective constituents could he
quickly undermined, if for it,, other reason than observers
might well misunderstand and misimerpicl the use of certain
bargaining tactics because of [heir unfamiliarity with the
process,
During the past live years, we have witnessed inlenvific l
efforts on the part of public interest groups to participate in
practically all phases of government operations. Particularly
since our nation's Watergate nightmare, voters throughout
the country have demanded an increased ,pertness in Iegisla.
live deliberations and decision staking. Until recently, how.
ever, nearly every jurisdiction had stopped short of extending
such openness into the realm of collective bargaining negotia-
tions. This hesitancy was seemingly predicated on the belief
than the presence of the public and/or the press at negotiating
sessions would most likely freeze the negotiators into fixed
positions.
Since 1975, lite national labor relations community has
focused its attention on Florida and its auempl to pursue an
innovative appmach it, collective bargaining which places
public sector negotiations sessions wilhio the provisions of a
"Sunshine" law and a Public Records Act. Most practitioners
prophesied that much exposure would critically wstrict the
necessary bargaining interaction and could lead to the possible
destruction of the process. Surprisingly, with a few exceptions,
the interjection of "sunshine" into the inner sanctum of col-
lective bargaining has not had the dire disruptive consequences
previously predicted.
• open bargaining brings change
As a labor representative, 1 have noted sonic meaningful
changes in the bargaining approach of public sector unions
which can he directly attributed to the newly imposed public
view openness of negotiations. For instance, there is a&rowing
tendency for initial employee demands to be hutch Iess in.
limed thaninpast bargaining situations. Union negotiators
have realized the possibility of adverse public reaction to
economic demands which appear to he exorbitant or unrca.
sortable. There is also the perception that pace a "public"
attitude has been formed, it is near to impossible to altar or
reverse. This is particularly true since the majority of the
citizens will only he exposed to the bargaining highlights as
selectively reported by the press. Thercrore, unions have found
a wealth of public telalions povsibililics it presenting demands
which appear to he sincere representations of employee needs
and which du not trigger a negative resrynnse from the laxpay-
ers. This approach has placed an priority emphasis nn attacks
o4 personnel practices and procedures which arc outdated, or,
in some cases, illegal (vis-a-vis court decisions regarding
promotion, assignments, discipline, and freedom of informa-
lion). Furthermore, it has encouraged unions to support the
currently popular attack on wasteful government spending and
the unneeded proliferation of government welfare programs.
Most public employers have fell conlidcni that traditionally
conservative news media institutions would he sympathetic to
their posilion and time color press or vide, accounts to sup.
Inst management positions while downgrading union juslilica.
tion for demanded changes. 'I his proposition has held true in
editorial comments wherein media management speaks forth.
However, news reports have landed In piewitl accounts sym-
pathetic as the union as seemingly the working press feels a
stronger allegiance (even it undefined) with the public cut.
ployces Than with their employers; or, at lead, thev have dens-
onUnled a compassion for the employees' needs.
e big hrnund+ diwvmuragvd
1 have viewed with hnrr'or those instances %share union nego-
tiators have encouraged large numhers of omit employees to
attend negotiating sessions. Such approach turns the process
into a slate fair atmosphere, and can only lend to a break.
down of meaningful discussions. Our approach has been to
discourage employee participation other than the members of
the negotiating team. Persons who do not take part in each
step of the procedure cannot understand that compromise
va. ®oard opens bargaining
The Fairfax County, Va., Board of Sapervlsors decided last month
to open negotiations with public cmployce onions to lite public.
Negotiations previously were behind closed doors.
In proposing the change, Supervisor James M. Scott said, "'Phe
public has an enormous stake In the outcome or these discussions.
Opening the nrgothiling process will Increase public understanding
of both management and employee p,dnis of view.... Most Im.
porta illy It will Increase the accouniablllly of all parties to the
clllsens of the community."
(and in some instances, full retreat I is an aspect of the art of
obtaining a workable labor agreement. Many union negotiators
feared that widely circulated press reports would have the
same impact as the actual presence of unit members. There is
logic to the argument. bol the predicted result has not matc.
rialired either because of the somewhat skimpy coverage pro.
vided most negotiations or the members' lackadaisical attitude
in reading published reports.
As Firefighters' President W. Howard McClennan previ.
ously predicted, the greatest hindrance of public intervention
conics in the final stages of bargaining when the issues have
been narrowed to the find few economic items which, in
many canes, mud Le dealt with in package "dead%' in order to
achieve a settlement. Neither the general public, the pnliti.
cians, nor the unit members appreciate The scmitivity of the
negotiators' positioning lnclics during that phaxc, nor do those
enumerated interest groups perceive the legitimacy of "deal
making." I hos, many impasses have been declatad because of
the negotiators' lack of nobility and flexibility during the last
critical scssiom.
In an earlier i.mas special report on open to the public
negotiations it was noted that generally speaking thicjublic
was apathetic to governmental sector collective bargaining,
and, therefore, participated only to minimal extent. That
observation has been an accurate assessment mail recently.
During the summer of '76 more media coverage was provided
local government bargaining, and the "walk-in" audiences be.
gan to grow in size and diversity. On October 2, the League of
Women Voters held a .symposium on public sector collective
bargaining III Tampa. As lite cov.0tement til the brxwhurc
noted: "You are the runl.tr 111 rualm NIA IOK 101.111 Ilvl
HAKCAINING—Florida law gives you tile light Io sit ;it tie
negotiating lahle. [tut, it's ncmtingless unless citizens rise this
right."
In numerous incidents, the balgaming process has been
handicapped because of many empfoycrd zealous doermina.
lion to avoid any possible charges of "outshine' vitilatirins. In
several such cases employer representatives have invited news.
paper reporters to join the negutialnrs of the [able, and then
Kansas city completes pubuc sessions
Loral 13, International Association of Fire Mithlers, AFL-CIO, and
the city goentmenl of Kansas ('fly, Ifo. have appeased a Ihree•
year umccntenl negotiated In public scssimu.'rhis is the third con•
tract negotiated by the city ht Ile area. 'file previous two were
wllh local 500, American Federation of Shill County and Isfunicl.
pal Employs, AFL-CIO, wldch represents the largest part of the
city work force.
The firnnen's cmmtaat calls for u 37.8 percent Increase mer the
three years, reduction In The workweek from 50 to 40 hours by
May 1, 1977 and exclimlon of the deputy' and battalion chiefs from
the hargaining unit. The ciders have Ned cult In court to block
lite removal.
proceeded to encourage Ihcn In interrupt the discussion with
questions or comments. One municipality insisted that tape
recordings he made of the entire bargaining session so that
verbatim transcripts could he publicly posted Another em-
ployer allowed a local radin station to do a live remote broad.
cost from the negotiating table!
Each of these situations has raked lite question: "flow
much exposure docs the Sunshine application legally require?"
That is a question which has not been addressed directly, as
yet, and will probably take several years of piecing together
various court decrees and Attorney General opinions before
a complete set of guidelines can he said if, exisl. On the tither
hand, parties have found line successful way of avoiding
unwanted exposure during the crucial last days of hargaining
is to invite the participation of a mediator. Although the Inw
is silent in this mailer, the Politic Ianployces Relations ('oan.
mission adopted a rade which vests certain mediation ctforls
with a cloak of confidentiality.
All tit all. the ycar has been an muerte%ling year of
adjustment fur must union negotiators, hnI the first time they
ousl worry ahom addleswtg themselves nut only w the inan-
agemcul Icnm, hill eels,, it, the live audience. 'rho fact alone
has lowed many plactilloncls In suphisGc:le their bargaining
style and strategy.
New concerns are evident: winning the allegiance of the
Media and the confidence of the public; jnsunng that demands
are explained in such a manner sa as to he accurately inter•
prced by the press: and must intpurtutlly. keeping the union
membership informed of latest developments before they find
out from al third -parry source. Gnperjence evidences that,
where fire media is present, the parties Iced to posture them-
selves with the media rather than negotiating with each other.
'Ilius, many ncgotialnrs are hcginning to look and sound more
and more like politicians and "soap opera" personalities.
Additionally, the ntcdia, by its very nature, ends to highlight
the differences between the partici, rendering the entire proc-
ess of attempting to reach agreement all the more difficult.
Regardless of these inherent drawbacks, public exposure
has aided many union negotiators in forcing rerdcitrant em•
players into the embarrassing positions of defending manage.
ment policies and philosophies which have gone unchanged
since the early 1900's. In fact, used correctly, the "sunshine"
can he a valuable ally to the public sector union in achieving
R% hargaining goals and objections.
DONALD n. SI.I.SNICK, 2d, Is a labor utter.
ncy in Miami, Fla.. with experience rep•
resenting first public management and
now is general labor counsel for the
f Florida Police Benevolent Association.
Earlier he was from 1972 to 1974, Di.
rector of Personnel and Labor Relations
w for the Date County, Fie., Public Safely
Utpurlmcnl and from 1974 l0 1973, Ui•
reeler of Employee Relations for the
Derck County public schools.
A graduate of the University of Virginia and the University of
Florida Law School, Slcsnick has ban an instructor in several labor
relations training programs and has publishctl an article in the
Florida slur Journal. lie is currently a member of the Metropolitan
Dade Cuunly Personnel Advisory Board, ria chairman of the
Florida Our Labor Relatinns law Committee, sohrommiltee chair•
man of the American Har Assmialiun Slate Labur I.ew Committee
and if pal president of the South Florida chapter, International
Personnel Management Association.
san Diage Mayor hits Illegal strikes and arbitration
by Mayor fere Wilton, Stat Uirgo, Calil•
(l:tretprerl /went an o hhets ./,-/infest Ise Ma fur II'ilwil. Inesi•
dein of the League of C'alilania ('irirt, ns the annnnl rordrr-
t'/lel' all the R estei l ,y'nays ldnpl,(1'rl :f Nar'inlian liar, fail'P.t
err Commardo, Calil.l
.. We do not have public employe strikes that are legal in
this state. We has a s
c some that mete illegal, and of course the
B
mere pronouncement that they are illegal will not in and of it.
self prevent their happening. That is why we've gone a step
further in San Diego, as they have in San Francisco. You'll
recall that after the police strike in San Francisco the public
even in that rather liberal, labor -oriented city reacted with
righteous outrage and voted by ghoul a 7011; margin of favor
of a hallnt proposition that would require the mandatory dis.
missal of striking police and litenico.
In San Diego the citizens hast June pmwd n similar pmpnei.
tion, but it extended to all public employes and it had another
4
1
interesting provision in it: once an illegal strike has begun, the
City is prohibited by law from doing anything to improve or
to offer to improve wages, hours or working conditions beyond
those made in the last offer prior to the commencement of
the strike. Now what that docs quite olwiou%ly is remove the
incentive for Nuking. Even if the Cit' C:iuncd gets a little
gutless and wants in sweeten the pot, they arc prohibited by
law from doing sal. I personally think that's tI very wise provi-
sion and one that should he adopted by a Int of other cities. i
must also say that I commend and am grateful In my Council
for the support they have given me hecausc I think they have
rightly asserted the right or the obligation that we haste In be
fair to both public employes and to the public anal It, consider
the nhilily of the taxpayer to pay. till[ I frankly have been
concerned whal may happen with it future Council. chat.
ter aniendnteltl has reduced my concerns olhslaminlly.
There arc a great many people in the general public who
I,,
FR
of lows City
MEMORANDUM
DATI, September 30, 1977
TO: City Council
W. City Manager
RE: Purchase of 0d Post Office
On Monday, September 26, 1977, the offer to purchase the old Post Office
was executed. The Postal Service has refused to allow the purchase to
be contingent upon the expiration of the environmental review record
time period even though the closing on the purchase of the Post Office
will take place sometime after the expiration of the period. This
refusal by the Post Office undoubtedly will lead to difficulty with the
Department of Housing and Urban Development when they audit the program
a year from now.
I believe that the Postal Service has been arbitrary about this matter
in a manner which is unwarranted. However, the issue came down to
either doing it their way or having them sell the Post Office on the
26th to another party.
P: •
6 City of Iowa Cile
MEMORANDUM
DATE: October 4, 1977
TO: All Employees Copies furnished to: City Council
FROM: City Manager^
I)� ` Council Candidates
/I�
RE: Political Activity
Just a reminder! The Personnel Rules and Regulations of the City govern
political activity in City elections by City employees (see below).
While certain of the rules extend beyond the provisions of State law, the
City Attorney has ruled that the City Personnel Rules are also applicable.
If you have any questions about a particular activity, please check with the
Legal Department first.
The applicable rules are:
"No person holding an office, or employment in the City service,
except persons duly appointed to City Boards and Commissions, or
persons elected to City Council shall:
"Solicit any monetary contribution to the campaign funds nor
make any monetary contribution to any municipal political
campaign or to the campaign of any candidate for municipal
office.
"Take any active part in a municipal political campaign.
"Act as a worker at the polls or distribute badges, pamphlets,
dodgers or handbills of any kind favoring or opposing any can-
didate for election or nomination to a municipal office.
"These regulations do not prevent any official or employee from
(on their own time, off duty, and not as an official representa-
tive of the City):
'Becoming or continuing to be a member of a political club or
organization.
"Attending a political meeting.
"Enjoying entire freedom from all interference in casting their
vote.
"Seeking signatures to any initiative or referendum petition
directly affecting his/her rates of pay, hours of work,
retirement or other working conditions.
"Distributing badges, pamphlets, dodgers, or handbills, or
other participation in any campaign in connection with such
petition, if the activity is not carried on during hours of
work and/or they are not dressed in the uniform required in
any department of the municipal government."
3857
rI
E
• /^¢
VC6WW11 CClN m41l 0E WAWING TUN ST
KI / i0W 13191 3" IBp5t20
y October 6, 1977
MAYOR
YAnY NEwuwen
C NVL MEMBERS
A1NM BALMER
GROL.'ROSSE
L'. ,OSIER
OAVIO IIPRFT
MAR BELEER
HOBERT VEVENA
Mr. George Nagle
Grandview Court Apartments
c/o Nagle Lumber Company
1201 South Gilbert
Iowa Xe
a 52240
Dear .
For touple of years the City of Iowa City has been attempting to
negotiate a new contract for services with University Heights. Unfortunately
it has been impossible to negotiate a contract which would be fair and
equitable to both parties. None of the proposals made by the City Council
of University Heights would adequately compensate Iowa City for the cost of
services. Therefore, effective December 31, 1977, Iowa City will discontinue
services to University Heights with the exception of water and sewer service.
As a major property owner I thought it would be important for you to have
adv::nce notice of this change, particularly as Iowa City will no longer pro-
vide fire and police service to University Heights. You may wish to discuss
this matter with your fire insurance company. It is my understanding that
your property is contiguous to Iowa City. However, annexation to Iowa City
would require approval of the City Council 0i University Heights,
If you have any questions concerning this matter, I will be pleased to discuss
them with you.
Sincerely you ,
a G. Der n
City Manag
cc:. •?owa City City Council
University Heights City Council
3 '�5s
0 0
^
CIVIC CEN EEIIAIO E. WASH O IHSI. V / I6H4CR Y,IUWA 5]!WQ
Kd7
13191 ]SA INTO
October 6, 1977
MAYM
MARY NEUNAUEER
COUNCIL MEMBERS
ANN BALMER
WOLMMOSSE
L E. E05TER
DAV I0 PERRET
MAX SELZEA
ROALRE VEVLRA
Mrs. Joyce Whinery
President, University Athletic Club, Inc.
2 Glendale Circle
Iowa City, Iowa 52240
Dear Mrs. Whinery:
For the last couple of years the City of Iowa City has been attempting to
negotiate a new contract for services with University Heights. Unfortunately
it has been impossible to negotiate a contract which would be fair and
equitable to both parties. None of the proposals made by the City Council
of University Heights would adequately compensate Iowa City for the cost of
services. Therefore, effective December 31, 1977, Iowa City will discontinue
services to University Heights with the exception of water and sewer service.
As a major property owner I thought it would be important for you to have
advance notice of this change, particularly as Iowa City will no longer pro-
vide fire and police service to University Heights. You may wish to discuss
this matter with your fire insurance company. It is my understanding that
your property is contiguous to Iowa City. However, annexation to Iowa City
would require approval of the City Council of University Heights.
If you have any questions concerning this matter, I will be pleased to discuss
them with you.
Since r/, yo
Neal G. erlin
City Manager
cc: Iowa City City Council
University Heights City Council
0 0
CIVIC CEN I"11310 L,YASIIINCT ON sr
IC*ACm.IOWA 6220
131913531000
t, October 5, 1977
MAYOR
MARY NSUNAUSSR
COUIICIL MEMCRS
AHINOAWCR
CANIA M,NO3C!
L P ZOSTER
UAVIO I'LNRCT
MAA SlI UR
NOILNI VLVLRA
Mr. Bob Sierk, Vice President
University Athletic Club, Inc.
44 Post Road
Iowa City, Iowa 52240
Dear Mr. ier�i7�"' y
For the last couple of years the City of Iowa City has been attempting to
negotiate a new contract for services with University Heights. Unfortunately
it has been impossible to negotiate a contract which would be fair and
equitable to both parties. None of the proposals made by the City Council
of University Heights would adequately compensate Iowa City for the cost of
services. Therefore, effective December 31, 1977, Iowa City will discontinue
services to University Heights with the exception of water and sewer service.
As a major property owner I thought it would be important for you to have
advance notice of this change, particularly as Iowa City will no longer pro-
vide fire and police service to University Heights. You may wish to discuss
this matter with your fire insurance company. It is my understanding that
your property is contiguous to Iowa City. However, annexation to Iowa City
would require approval of the City Council of University Heights.
If you have any questions concerning this matter, I will be pleased to discuss
them with you.
Sincere urs,
eat G. B lin
City Manager
cc: Iowa City City Council
University Heights City Council
M"
0 0
CIVIC CENT ER AIO E. WASHING E
ASHINOI
ON ST
IOWA CITY. RO
I3191 ]5441800VU/(
October 6, 1977
MATCH!
MARY NEOHALAIR
CCTNCR MCMBOLL
ANN BALMER
CAROLS CSSF
41. SOSICR
OAVRIILRRLT
MAI SS LIE,
ROBERT VCVLRA
Mr. David Cronin
Acting Superintendent of Schools
1040 William Street
Iowa City, Iowa 52240
Dear Mr. Cronin:
For the last couple of years the City of Iowa City has been attempting to
negotiate a new contract for services with University Heights. Unfortunately
it has been impossible to negotiate a contract which would be fair and
equitable to both parties. None of the proposals made by the City Council
of University Heights would adequately compensate Iowa City for the cost of
services. Therefore, effective December 31, 1977, Iowa City will discontinue
services to University Heights with the exception of water and sewer service.
As a major property owner I thought it would be important for you to have
advance notice of this change, particularly as Iowa City will no longer pro-
vide fire and police service to University Heights. You may wish to discuss
this matter with your fire insurance company. It is my understanding that
your property is contiguous to Iowa City. However, annexation to Iowa City
would require approval of the City Council of University Heights.
If you have any questions concerning this matter, I will be pleased to discuss
them with you.
5' cer ly yours
Neal . Ber in
City Manager
cc: Iowa City City Council
University Heights City Council
Dr. Jack Cazin, President
School Board
1122 Downey
Iowa City, Iowa 52240
ME
Sept. 27, 1977
Mr. Neal Berlin
City Manager's Office
Iowa City Civic Center
Iowa City, Iowa
Dear Mr. Berlin:
Enclosed you will find excerpts of a study done by the Iowa DOT
examining the possibility of instituting commuter rail service in the
state. During the council's informal discussions of the Area Transportation
Study several weeks ago, the possible use of a commuter rail service in
Iowa City/Coralville to help relieve congestion in the 6/218 corridor Wus discussed.
The enclosed study does not bode well for this sort of relief, at least not
between Cedar Rapids and the Iowa City area. However there are areas open to
question in this report as noted below.
First it is worth noting that there are 3800 person trips between Iowa
City and Cedar Rapids daily. Another notable point is that for the route
to break even on each run, the RDC needs a capacity of 45%, or 35 occupied
seats per trip. On a daily basis then, an RDC between Iowa City and Cedar
Rapids needs to transport 140 persons per day, for a diversion from other
modes of travel between the,.two cities of 3.5% of the total daily person
trips. When we consider the amount of travel in the 6/218 corridor alone,
it seems that the commuter traffic in this area could sustain this effort, if
properly done.
The anticipated ridership figures that the DOT planners used in estimat-
ing the demand for an RDC type service were based on AMTRACK's experience in
serving populations with access to a rail serviceti,9 at is parralled by an
interstate highway , as is the case between Iowa City and Cedar Rapids. The
study ignores the needs of commuters who for one reason or another would not
use an auto in Iowa City because of the congestion along 6/218. The study
also does not consider any disincentives for using an auto, such as parking
restrictionserhigh fuel costs or added incentives for using a commuter rail
service such as speed, convenience or cost. The study also ignores the cost
of public subsidy, in the form of maintainence costs for auto and bus traffic
on the highways while at the same time it calculates the costs of maintainence
along the proposed commuter rail DO r . In other words, this study seems
t4exist in a vacuum because it fails to consider the special needs of the
commuter in Iowa City, as well as glossing over some of toe more important
3 859
0 0
issues involved in transportation planning at this time.
Several other operational questions are raised by this report but are
not answered therin. The report states that "railway companies are generally
not intersted" in being involved in the operation of a commuter rail service.
This reluctance not to be involved includes actual operation as well as use
of the right of way and tracks to run the RDC. However, the DOT apparently
did not actually approach each railway company involved and ask for their
cooperation, and it seems probable that negotiations with the Crandic railroad
would be productive. Also, the question of providing railroad stations for
the commuters was estimated to cost between $5,000 to $30,000 each. This
from
cost could be reduced to almost zero by using the modular units as the Clinton
Street Mall as terminals. Lastly, the question of energy use was raised.
The DOT calulated the energy intensiveness of the RDC to be double a bus, with
a load factor of 26% capacity. The figures should aslo include the energy
intensiveness at the break-even point, 45% of capacity, and should also include
a comparison between the RDC and x number of cars needed to provide 3800 person*
trips per day.
On another topic, I would ask the council to consider a resolution
urging the people of Iowa City to be alert to and disapprove strongly of any
and all attempts by either side to inflame, distorfor otherwise bring into
disrepute the motives, intentions or desires of the opposite point of veiw
in the upcoming public debate over the Tenant -Landlord Ordinance. It would
be a shame if this first test of the initiative/referendum proceedure in the
state of Iowa was sullied by groups on both sides becoming overly emotional
and bitter in their opposition to each other.
I hope the information that I have provided is of some use to you or the
council. I would urge that the city push the Iowa DOT to include some of
our urban transportation needs in any further consideration of the feasibility
of a commuter rail service.
Sincerely,
John Morrissey
513 S Van Buren P4
Using an occupancy rate of 1.8 persons per vehicle, with negligiable bus use,
1,055 cars are being used.
I
jf
The Economic Feasibility of
Rail Diesel Car Passenger Service in Iowa -
A Study for Governor Robert D. Ray
4A / DES MOINES REGISTER
DOT decides
Ray's idea
`not feasible'.
ri+aMwr, N•. Mti. s.rvk+
AMES, IA. — Hardly anyone —
perhaps as few as one customer per
trip — would ride so-called rail diesel
cars irom Des f loines to Iowa City or �I
Osceola if the unique service was Qx�
provided, a special Iowa Department, fir:
of Transportation (DOT) study has
concluded.
Rail diesel can are self-contained,
one -car passenger trains, with the
driving section in the front and seats
for about 75 passengers — something
like giant buses that operate on
railroad tracks.
in his budget speech last winter,
Gov. Robert Ray requested that
i50,000 be set aside to provide such Elio
service in the state on a trial basis. -:.d
But before spending that money, �'j
the DOT decided to study the idea, +d
and has concluded that this form of
transportation is not feasible In Iowa
because it would attract few rider
and fegoire mi1Lions of dollars of
state subsidies.
The agency studied three possiblel
routes — Des Moines to Iowa City,'
C,.'da: Rapids to Iowa City and Des
:d�iacs to Ozceola via Chariton for a
c^nnecdon with Amtrak across 'l
:vr ^n Iowa.
rn•%c, ,arallel some of the
5•. c's East interstates ano primary
�.2 D!:s Moines-lowa City route
•.'t rid attract only six passengers for i
,. t^ ni ova round trips per day,
adar,lothestudy.
:•.s .:orres•0sceOla run would
attract enl,v ons passenger per trio;
and t'ce Iowa City -Cedar Rapids route
would only eave live, the study said.
May 23, 1977
,4
Prepared by:
Office of Advance Planning
Planning and Research Division
Iowa Department of Transportation
Ames, Iowa
515-296-1600
Rapids
Bus RDC
18 5
m
pass/tri o w pass/trip
12 440 a .,o, I 8
iillll V > IYI
�11trips [ k tnr trips III
18 ❑ 5
, u •
ass/tri o a pass/trip
0
o ,G
Bus Ln .,4
L;k
7trips _Bus
Des Moines pa— _ 18
$770,000 Annual Loss Aass/trip
Iowa
with RDC service City
LRDC
ss/trip y 4 trips — 5
pass/trip
Bus 0 v RDC
A QJ[;4Q
y pas •
q m
ii trips " o it trips j}
0 1
1 N
pass/tri con g pass/trip
Amtrak — Burlington Northern Line
Osceola
Ottumwa
Mt. Pleasant
Burlington
0 0
TABLE OF CONTENTS
PAGE
I.
COST SUMMARY
1
II.
RECOMMENDATIONS
2
A. Iowa City/Des Moines Passenger Service
2
B. Des Moines/Osceola Feeder Service
2
C. Cedar Rapids/Iowa City Passenger Service
3
III.
FURTHER CONSIDERATIONS
3
IV.
COST PROJECTIONS
5
A. Rail Diesel Car Purchase, Maintenance and
Operation Costs
5
B. Des Moines/Iowa City Passenger Service
6
- track upgrading costs
6
- track maintenance costs
6
- signal conversion costs
?
- tot -al passenger service costs
?
- Projected passenger traffic
8
- projected subsidy requirements
g
- modal cost comparisons
10
C. Feeder Service to Present Amtrak Service
11
- track upgrading costs
11
- passenger service costs
11
- projected passenger traffic.
13
- modal cost comparison
15
D. Cedar Rapids/Iowa City Passenger Service
15
- track upgrading and maintenance costs
15
- projected passenger traffic
15
- projected subsidy requirements
15
- modal operating cost comparisons
18
APPENDIX
What is a Rail Diesel Car?
A-1
ABSTRACT
This report summarizes a study of the
economic feasibility of
Rail Diesel Car (RDC) passenger service in Iowa and outlines other
considerations in the operation of rail diesel car service. Costs
associated with rail diesel car service include the purchase,
maintenance and operation costs of the rail diesel car, the upgrading
and maintenance of the track and the installation of signals. Revenues
from the rail. diesel car service were based on Amtrak ridership
forecasts and a fare equal to current bus service within the study
corridors. The following table shows the ridership required for the
various RDC routes to break-even.
* RDC has 75 seat capacity
D.M./I.C.
I.C./C.R.
D.M./Osceola
RDC fare
= Bus fare
$16.55
$3.35
$4.85
Round -trips
per day
2
4
2
Occupied seats
to break-even
70
35
-
(93% Cap)*
(472 Cap)*
(1170 Cap)*
Anticipated
6
5
1
Ridership
01% Cap)*
0% Cap)*
1 (1B Cap)*
* RDC has 75 seat capacity
The intercity bus operation along the aforementioned routes
are presently. under-utilized at approximately 409; of their
capacity. A rail diesel car service would compete for passengers with
these private .bus services while offering little extra service.
Other problems arose while considering rail company insurance/
liability, the mix of passengers and freight service, the
availability of passenger stations, energy requirements, equipment
availability, backup equipment for mechanical failures and travel
to and from terminals in town.
The Iowa DOT feels that the implementation of rail diesel car
service, at this point in time, would not be a sound investment
for the State of Cowa_
I. COST SUMMARY
Des Moines/Osceola
Track upgrading, signal conversion and RDC purchase.
2/ Beyond present conditions.
3/ "Subsidy" means "loss" in general accounting termq.
CJ
i
i
•
Des Moines/
(via Chariton)
Cedar Rapids/
Iowa City 122 mi.
77 mi.
Iowa City 27 mi.
Capacity per trip/
Anticipated demand
75/6
75/1
75/5
Service Frequency
Two round trips
Two round trips
Four round trips
per day
per day
per day
Miles operated
178,000
112,000 .,
79, 000
per Near
Initial Investment
$3.3 million
$2.2 million
$375,000.•
Annual Costs:
RDC Purchase'
and Operation
$235,000
$210,000
$170,000
Track Improvement
605,OCO
100,000
0
Annual Revenues
70,000
5,000
25,000
Annual Subsidy 3/
$770,000
$305,000
$.145,000
Required
Track upgrading, signal conversion and RDC purchase.
2/ Beyond present conditions.
3/ "Subsidy" means "loss" in general accounting termq.
CJ
i
i
•
Cedar Rapids/Iowa City Passenger Service o.
RDC passenger service between Cedar Rapids/and Iowa City
is not a sound investment'for Ehe State of, Iowa') With a maximum
of 20 passengers per day, round rip, this operation would
have a deficit in excess of $100,000 annually. This figure does
not include the initial $375,000 investment.
Existing bus schedules of 12 per day have already attracted
most of those individuals who.desire transportation between Cedar ;
Rapids and Iowa City by a mode other than the automobile.
III. FURTHER CONSIDERATIONS
Insurance/Liability Problem
The largest concern for rail companies regarding RDC service is
passenger and crew safety, as illustrated by the recent discontinuance
of RDC passenger service between Dubuque and Chicago. Labor unions
questioned the train crew safety because of poor equipment and sub-
standard track, combined with tight schedules and were not willing
to allow further operation. If RDC service can be provided with safe
cars and adequate track conditions, labor negotiations should not
be a problem.
Mix of Passenger and Freight Service
Another consideration is the mixing of passenger and freight
traffic on the same rail line. For the railroad company, this may
interrupt freight train dispatching. Rail companies operating in
Iowa generally do not want involvement with RDC passenger operation.
Their appro`va'Y is required before operating RDC services on their lines.
Inadequate Stations
Most train stations in their present conditions are not capable
of handling passenger movements; these would require additional funds
for improvements. However, the need for large terminal facilities
would not be expected. Possibly small terminal facilities could be
owned and operated privately. More likely are small publicly owned
facilities varying in cost from $5,000 (e.g., "bus :shelter type")
to $30,000 (e.g., small enclosed shelter with bathroom facilities)
per location.
-4-
-
Damaqe to Private Bus Service / �
Present load factors of 40% (19 of 47 seats)/on intercity
buses indicate this mode is not_now being fuky utilized. RDC would
compete with private bus service for passengers add offer no new
.ser-aices which would attract cure -.auto .drivers.._ 4 ,� •, pate n
Energy Requirements
7{.bus is._50% more energy .•, efficient. At forecasted traffic
volumes, to move the RDC with a 26% passenger load factor (20
of 75 seats filled) would require 2,3_5_0 BTU's of energy per_pas- senger
mile. This compares with a 40% load factor (19 of 47 seats) on a
intercity bus and 1150 BTU's per passenger mile.
Equipment Availability
Delivery of a rebuilt RDC ($250,000) can be expected to take
several months.
Backup During 13reakdown
In this study, only one car would serve each line. A backup
RDC could be purchased for another initial investment of $250,000.
Travel to and from Terminals in Town
Any trip by RDC consists of three distinct movements: 1.) trans-
portation to the terminal by auto or bus, 2.) the RDC itself, and 3.)
transportation to the final destination, again by auto or bus. Thus,
RDC usage will normally be more time consuming and more inconvenient
than use of a private auto.
• -5-
IV. COST PROJECTIONS
E
Rail Diesel Car Purchase, Maintenance and Operation Costs
One current user of the Budd RDC is the Massachusetts Bay
Transit Authority (MBTA) which presently owns and operates 84
Budd RUC units. A rebuilt 75 -passenger Budd car costs $250,000.
The Budd Company is designing a new RDC which will cost approxi-
mately $750,000. The first prototype should be available in
18 months. Fiat also produces an RDC. The MBTA is testing Fiat's
vehicle for operation and comfort. Its initial cost is about
$500,000.
The estimated fixed and variable costs associated with the pur-
chase and operation of a rebuilt 75-pa88enger Budd RDC are shown
in Table 1 and Figure 1.
Table'l - RDC Passenger Service Costs
Fixed Annual Cost Per Vehicle variable Annual Costs Per Vehicle
Item Fixed Cost
Purchase $ 20,000
Maintenance $ 36,000
Crew Cost * $ 60,000
$116,000
Item Cost/Mile
Fuel $.22
Maintenance $.45
$.67
*three-man crew, 365 days per year, 8 hours/day.
$300,000
Annual
Cost $200,000
Per
r:DC
$100,000
50,000 100,000 150,000 200,000 250,000
Miles traveled per. year
Figure 1
0
- Projected Passenger Traffic
rI
The 1976 travel patterns, originati�ng or terminating
between Ames, Des Moines, Iowa City, and\Cedar Rapids are shown
in Figure 2.
Figure 2
Average Daily Person -Trips
by Bus and Auto - 1976
AMES CEDAR RAPIDS
3,20(
`l
3,800
CITY
Due to Amtrak's experience in estimating intercity rail passenger
service demand, company officials were asked to estimate potential
ridership in this corridor. ,It.__was_Oetermine.d that the Des Moines
to Iowa City corridor would probably attract less than one-half
of the national average of 2% because the route is paralleled
by an interstRte highway. Good bus service is also available.
Based on present person -trips between Des Moines and Iowa City,
it appears that RDC service could attract an average of 12 passengers
daily in each direction - six passengers per trip. At this
ridership level, a subsidy of approximately $770,000 per year would
be required to operate the vehicle if the round trip fare were to be the
same as the present bus fare ($16.55).
- Projected Subsidy Requirements
Figure 3 indicates profit/loss projection,; for various
ridership levels. Large deficits are expected with anticipated
ridership.
-15-
- Modal Cost Comparisons
Costs of existing Amtrak feeder service from Des Moines,
Iowa City, and Cedar Rapids are shown on Table 6.
Since any Amtrak connection would have almost no ridership,
it is not feasible to invest several hundred thousand dollars
annually to subsidize any of these alternate routes.
Cedar Rapids/Iowa City Passenger Service
The study of possible RDC service in this corridor began with
the assumption that service would be provided by a single RDC
operating at the present maximum speed of 40_mph; the vehicle
making as many trips between cities as possible within an
eight-hour working day. This allows four round trips per day with
six hours travel time and slightly less than 15 minutes per trip
for loading, unloading and maintenance.
- Track Upgrading and Maintenance Costs
Operati.ng an RDC passenger service on the existing tracks
would require signal conversion at a cost of approximately $125,000.
Maintenance of this track is estimated at $5,000 per mile; a total
of $135,000 annually, 1t t,, .. 1. ,
Projected Passenger Traffic
Although nearly 3,800 one-way person -trips are made between
these two cities daily, it does not appear that sufficient rider-
ship could be generated to support an RDC operation. Twelve buses
presently operate between Cedar Rapids and Iowa City daily with
less than two passengers per trip traveling only between these
two cities. Using the same reasoning as that applied to the
Des Moines/Iowa City corridor, no more than 20 passenger round -
trips daily could be expected between Cedar Rapids and Iowa City.
- Projected Subsidy Requirements
Figure 8 indicates that subsidies of $100,000 to $200,000
annually would be required to support an RDC operation. Ticket
prices comparable to present round-trip bus fares ($3.35)
would cover less than 15 percent of the RDC operating costs.
N
• -17- •
Figure 8
PROJECTE•,D PROPIT (LOSS)
CEDAR RAPIDS/IOWA CITY RDC SERVICE*
*Four round trips daily
$
240,000
200,000
160,000
Annual
Profit
80,000
40,000
Breakeven
-40,000
Annual
Loss
-120,000
-160,000
5 10 15 20 30 40 50 60 75
Passengers/Trip
Example: At an a:.tiiipated ridership of 5 pa:.senger:, per trip,
assuming fares charged equal bus fares, the four round
trips per day would generate a loss of $100 r_r trip or
$145,000 per year.
160
140
?rofit
Per
120
Trip
100,
80
60
40
20
Breakeven
-20
-40
Loss
Per
Trip
-80
-100
• -17- •
Figure 8
PROJECTE•,D PROPIT (LOSS)
CEDAR RAPIDS/IOWA CITY RDC SERVICE*
*Four round trips daily
$
240,000
200,000
160,000
Annual
Profit
80,000
40,000
Breakeven
-40,000
Annual
Loss
-120,000
-160,000
5 10 15 20 30 40 50 60 75
Passengers/Trip
Example: At an a:.tiiipated ridership of 5 pa:.senger:, per trip,
assuming fares charged equal bus fares, the four round
trips per day would generate a loss of $100 r_r trip or
$145,000 per year.
-lo -
- Modal operating Cost
Figure 9 shows the superiority of alternate modes.
Figure 9
Cost Comparisons - Iowa City/Cedar Rapids
Operating Cost
per hound Trip
of 54 miles
Cost per Passenger -Mile
With Anticip.ted Ridership*
43.04
2 j
11 1
1 0.2C r -n � r,
0 N ( U
a M
4
3
2
1
Operating Cost Per
Available Seat
0
♦J N C qUU
Cost per Passenger
with anticipated Ridership
25.00 $23.20
20.00
15.00 _
10.00
5.00 54.44
\ ;2.d7
o L
4j
2 M > [L
*Anticipated Ridership
Auto
- 1.6
Passengers
nus
125
Van
$116
100
- r,
nnanpnnprn
75
$47$3+O
50
25
ia
$ L
n0
�+
N
C U
Cost per Passenger -Mile
With Anticip.ted Ridership*
43.04
2 j
11 1
1 0.2C r -n � r,
0 N ( U
a M
4
3
2
1
Operating Cost Per
Available Seat
0
♦J N C qUU
Cost per Passenger
with anticipated Ridership
25.00 $23.20
20.00
15.00 _
10.00
5.00 54.44
\ ;2.d7
o L
4j
2 M > [L
*Anticipated Ridership
Auto
- 1.6
Passengers
nus
- 1O.Pasaongers
Van
- 6
Passengers
unr
- r,
nnanpnnprn
0 0
A-1
APPENDIX
WHAT IS A RAIL DIESEL CAR?
The RDC is an advanced type of rail passenger equipment capable
of operating on existing or moderately upgraded track.
The RDC is similar to a normal railroad passenger car except
the first section of seats is used as the engineer's compartment.
Seating capacity of each car is 75 passengers.
Operation of an RDC unit require an engineer, conductor, and
usually a safety related person. Some labor agreements require
three crew members.
The RDC is capable of speeds up to 90 mph. Each car has two• -
275 -horsepower diesel power plants. Acceleration and deceleration
times are reduced from conventional passenger trains used in Amtrak
operations. Fuel consumption of a rebuilt RDC is 0.67 gallons per
car mile based on MDTA experience with the operation of 84 RDC's
in 1975. A comparison of bus and RDC energy intensiveness conducted
by the Transportation System Center, U.S. DOT, finds the.RDC 200%
more energy intensive per passenger mile when 20 passengers are
carried an each mode.
Equipment storage and maintenance facilities can be provided
at a cost of $12,000.. per year for each RDC.
The RDC shown on the front cover is the type used in our
study since it is the cheapest and most readily available.
The railcars shown in figures 1 and 3 are presently in operation
in Nest Germany. The Uerdingen railcar has the capability of operatinq
under either diesel or electirc power while the U-Dahn railcar is
powered by a self -ventilated do traction motor. The Light, Rapid,
and comfortable (LRC) railcar shown in figure 5 is in operation in
Canada.
The railcars shown in figures 2 and 4 are domestic models
that require further testing before their functional reliability can
be reasonably assured.
City o • , }' CIO
DATl: October 6, 1977
TO: Ralston Creek Coordinating Committee
FROM: Dick Plastino, Director of Public Works 6',
RE: Status of Watershed Management Plan
On September 29, 1977, a meeting was held with Jim Powers, Chet Orelup,
Bill Lindley, representing Powers and Associates, and myself representing
the City.
We discussed the preliminary rough draft of the Watershed Management Plan.
Many of the deficiencies in the final report were discussed, in particular,
differences between the original scope of services and the preliminary
report were clarified.
It was agreed that substantial re-evaluation and rewriting of the rough
draft will be done in the future. Estimated completion time is two to
three months. I emphasized that quality of the finished product was of
prime importance and the firm should be given enough time to properly
rewrite and re -analysis the report.
On other matters, a contract for the four interim projects has been let
and work should start in the next few weeks.
City Attorneys are continuing to review the environmental aspects of the
south branch detention structure and they should provide advice to the
City Manager and Director of Public Works in the next two to three weeks.
Also, the next scheduled Ralston Creek Coordinating Committee meeting is
October 19, 1977, at 7:30 p.m. in the City K-lnager's Conference Room to
discuss the general progress of the Ralston Creek projects.
cc: Neal Berlin
City Council
..•
0 City of Iowan CI19
MEMORANDUM
DATU October 3, 1977
TO: Neal Berlin and City Council J
FROM: Dick Plastino, Director of Public Works
RE: Department referral informal meeting September 19, 1977 -
Why is bus subsidy figure higher?
The amount of Transit Division operating cost funded from
other than fare revenues has increased recently because of
the following two reasons:
1. The Equipment Division maintenance charge has
been increased from the artificially low figure
of $7 per hour to $IS per hour. This adds
approximately $60,000 to the Transit Division's
budget.
2. In FY78 due to State law the City started charging
State IPERS and Federal social security in the
amount of $41,000 against the Transit Division's
budget.
In summary, the FY78 Transit Division budget includes charges
approximately $100,000 higher than the IY77 budget; therefore,
the amount of local subsidy is greater.
cc: Hugh Abse
sr>W
• City of Iowa Cif?
MEMORANDUM
DATE: October 6, 1977
TO: Neal Berlin and City Council
FROM: Dick Plastino, Director of Public Works
RE: Service Building
Attached is a preliminary site plan showing a proposed layout at the service
building for Council consideration.
Work is suggested in three phases:
Phase 1 - Construction of offices and crew ready rooms out of surplus
Clinton Street modulars. Eight modulars will be needed.
These are shown directly south of the existing offices at
the service building. Cost to move and renovate 3808 square
feet at $5 a square foot equals $19,040. At least two
modulars can be moved immediately. Funds would be taken from
the FY78 Street budget.
Phase 2 - In FY79 sufficient money would be budgeted to add on to the
repair area. Cost for 5300 square feet at $15 a square
foot equals $79,500. Wash rack 450 square feet at $15 a
sqaure foot equals $6750.
Phase 3 - IY80 construction of equipment storage - 7100 square feet at
$10 a square foot equals $71,000.
it is anticipated that the excess Clinton Street modulars frill begin to be
acquired immediately. Cost for foundations will be absorbed in the road
use tax fund. Mnimum prices will be set on the modulars and finds for
these will be taken out of road use tax funds.
It is felt that the proposed program, which is a combination of force account
work and contract work, is achievable. Benefits will include better employee
morale, the ability to take care of vehicles better, extended equipment life,
higher efficiency from employees, and last, but certainly not least, all
improvement in the City image in this area of town.
3 S 621
I
�i'J•.�
to
� i
I w
df.
,-..)>.
,:., .
y. ,,�j-..�
'�. Si`�41
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y..
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i
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!,-�A J=! , , . ,
_Y4
'• RECEIVED 0
� Johnson county
r♦'� regional planning commission
_,•V2 all III I oWk it IU 64::01 It iN'll .11 y, in'N I '.:''?:L I .414�dh1 HS:xh
October 5, 1977
MEMO
T0: Neal Berlin
FROM: Emil Brandt (/K/J�jJJlll
RE: Transit Survey
61977
MhA IIIIIIQI bnq
Unl I Hnrxji i.—A.... I.—I.
Arrangements have been made with your Transit Director, Hugh
Mose to conduct a survey of transit users of the Iowa City
Bus System on the following dates:
October ll, 12, 13, 14, 17, 22
Every route in the city will be covered; time will be from
6:30 A.M. to 10:30 A.M. and from 2:00 P.M. to 6:00 P.M.
Employees of our agency, the Johnson County Regional Planning
Commission, and of the East Central Iowa Association of Re-
gional Planning Commissions will be on the buses to administer
the survey. No burden should be placed on the bus operators.
The survey is sponsored by the Iowa Department of Transportation
and is part of a statewide survey of bus systems. The informa-
tion collected will be available locally, and will enable us to
update most information contained in the 1972 survey of our local
systems at minimal cost.
A copy of the survey and the schedule is attached for your in-
formation. 1 would be happy to answer any questions you might
have on this matter.
CC: James Elza
Hugh Mose
3863
��. REGIONAL PLANNING COMMISSIONS RIDER SURVEY
This survey is being conducted by your regional planning
agency in cooperation with the Iowa Department of Trans—
portation to determine the transportation needs of rural
and small urban residents in Iowa. Please take a few
minutes to fill in the form. All answers will be re-
garded as confidential. If you have already completed this
survey, please do not fill it in a second time. Please
return the questionnaire before you get off. If you do
not have time to finish it, please complete it at home
and mail it to the Iowa Department of Transportation.
1. At what location did you get on this vehicle (nearest
intersection or crossroads)?
2. How far do you plan to travel on this vehicle?
blocks or miles
3. What is the primary purpose of this trip?
( ) recregtion/social; ( ) congregate meal, ( ) work;
( ) shopping;. ( ) medical; ( ) school; ( ) other
4. How did you get to the location where you were picked
up?
( ) walked; ( ) auto; ( ) urban bus; ( ) taxi;
( ) got on at origin; ( ) other
S. Was the vehicle on time? ( ) early; ( ) 0-5 minutes
late; ( ) 6-10 minutes late; ( ) 11-20 minutes late;
( ) more than 20 minutes late; ( ) not applicable
S. Now often do you ride this service?
(1 3 or more days a week; ( ) 1-2 days a week;
( ) 2-5 days a month; ( ) once a month;
( ) less than once a month
7. If this service was no available would you have been
able to make this trip ( ) Yes; ( ) No
I. Why did you use this service to make this trip?
Check one or more.
( ) Do not have a driver's license'
( ) Do not like to drive
( ) This service is more convenient
( ) Unable to operate a car due to physical
disabilities
( ) No auto available for trip
( ) This service is cheaper
( ) Other
9. How often do you rely on other individuals for
transportation?
times a•.week
RIDE CHARACTERISTICS:
Please rate this service according to the following.' Plac
an X in the box which best describes your feelings about t
service. IN MY OPINION THIS SERVICE IS
Total time spent waiting
Comfort in vehicle
Dependability of on-time
arrival
Pleasantness or ride
Safety
Vehicle Cleanliness
Total time of trip
Cost of trip
Courtesy of personnel
Schedule information
Transfer convenience
Area served
USER PROFILE
1.
2.
3.
4.
VERY GOOD GOOD FAIR POOR VERY F
Do you have a valid driver's license? ( )Yea; ( )No
If not, did you ever have one: ( )Yes; ( )No
How many cars (including pickups and campers) are in
your household?
( ) 0; ( )1; ( ) 2; ( ) more than 2
Was there a car available for this trip? ( )Yes; ( )
5. Sex: ( )Male; ( )Female
6. How old are you? ( ) under 18; ( ) 18-24;
( ) 40-59; ( ) 60-64; ( )
7. What is your marital status? ( ) single;
( ) widowed;
s.' Do you have a physical disability which makes
difficult? ( ) Yes; ( ) No
-'------------------------
Other service information:
1.
2.
( ) 25-39
§5M ov
1ied
1 other
travel
Please respond if relevant to
your service.
Do you plan to travel to another county on this vehicl
( ) Yes; ( ) No
If this service sponsors special group excursions, how
often have you gone on such trips?
() more than once a month; ( ) once a month;
() a few times a year; ( ) never
THANK YOU FOR YOUR COOPERATION
0
01-tober 5, 1977
City Council
Civic Center
410 E. Washington Street
Iowa City, Iowa 52240
Re: Additions to non -conforming buildings
Dear Council members:
Please be advised that at the request of the City Council, the Planning
and Zoning Commission reviewed an application which was earlier sub-
mitted to the Board of Adjustment by Sherman and Velma Hochstetler
for a variance to construct an addition to an existing non -conforming
home at 409 Second Avenue. The Commission discussed possible alternatives
for amending the Zoning Ordinance to (1) allow structural alterations
to be made to non -conforming buildings, and (2) reduce the required
setback for buildings in existing and established areas.
The Commission, however, did not feel that it was in the best interest
of the City to perpetuate and increase the longevity of a non -conforming
situation, particularly in the Hochstetler case as their residence is
only located four feet from the front property line. The Hochstetler's
are capable of remodeling or repairing their residence. They are only
restricted in adding onto the residence.
The Commission felt it would be most appropriate to amend the Zoning
Ordinance to reduce the required setback for existing buildings in
established areas but also decided it would be premature in light of
a Zoning Ordinance being completed next year.
Sincerely,
Patricia Cain
Chairperson
Planning and Zoning Commission
/sc
CITY OF IOWA CITY
CIVIC CENTER, 410 E. WASHINGTON ST.
IOWA CITY, IOWA 52240
319-354.1800
386q
L
MINUTES OF STAFF MEETING
September 28, 1977
Departmental referrals from the formal meeting of September 27 were distributed
to the department heads (copy attached).
Budgets for boards and commissions were briefly discussed. During preparation for the
FY 78 budget, department heads were advised to include in their department's budget
the expenses anticipated for the board/commission relating to their department. This
was not done in all departments, and these expenses now must be absorbed by that
department.
The City Manager mentioned complaints he has received concerning telephones ringing
too many times before being answered. Department heads were advised to make sure
phones are covered at all times.
The City Manager cautioned that no City employee is to have contact at this time
with any of the people who bid on urban renewal property. Any contacts with developers
are to be by the City Manager or Paul Glaves. This also applies to contacts with
the news media. The final report will be out on Friday.
The Director of Parks and Recreation will be out of town beginning at noon on
Thursday, September 29, until the end of the following week. Bob Lee will be in
charge.
Christmas holiday time was discussed. The Civic Center will be closed on Mondays
after Christmas and New Years Day. The floating holiday may be taken at the employee's
discretion. The matter of whether or not this holiday had to be taken before the first
of the year was discussed. It was felt that employees should be able to carry over
this holiday until the beginning of the next fiscal year. This will be reviewed by
the Director of Human Relations.
WE
SUBJECT
DATE
RECD
REFERRED
To
DATE
DUE
0
LU Uj
Q W
2 o
w Q
Q
a
COMMENTS/STATUS
y n L; C/l
Notif Ken Hollywoo lvd
of Old Jet meeting
9/27
�-- -
CTY MGR
_._-
` -,•��r
Statement of Financial disclosure
for ballot issues. Ira Bolnick
9/27
4'' A /-
Bob Vevera out of town October 10
9/27
Summit Street Bridge
9/27
PUB WRKS
Notify Housing C;Wm of informal
discussion Oct iS Min. Housin St
9/27
dards
HOUSING
h! /l C'r
Refer Min Housing Standards to
Board of Appeals
9/27
CTY CLERK
Set public hearing Oct •2 Building
Moratorium. Refer to P E 2 for
recommendation if interium ordinanc
is appropriate, would it prohibit
new construction, all new construct'
except single family residential.
n
9/27
CTY CLERK
Send Council copies of R -3A study
completed in 1975.
9/27
COMM DEV
1 1
nCnn n I ACwI�
VREFERRALS
Cr/'11"1I MLIV 1
FORNIAL SEPTEMBER 27, 1977 continued
V 0
SUBJECT
DATE
RECD
REFERRED
To
DATE
DUE~
¢ W CrLU
al*
o
COMMENTS/STATUS
9
Q
w ¢
a
ICTY
'
Schedule Oct 3 informal meeting
L .�rc�-
in another location
9/27
MGR
Why do cars have to be weighed and
Cars are backing up making others
why do they have to wait at the
wait. Usually cars cannot carry
landfill.
9/27
PUB WRKS
more than the minimum weight.
Staff investigate Hickory Hill
Park acquisition.
9/27
PARKS
Send Council final copy of the
transit grant application.
9/27
PUB WRKS
/
Was Ralph Oxford notified of the
amendment to the taxicab ordinance.
9/27
LEGAL
Defer final plat of resubdivision o
lot 2 Sturgis Corner until signatur
are obtained.
Defer amendment to Personnel Rules
/�
Schedule for informal session
&Regulation. Require leave of
P.Brson
1. .
absence for City Council election
9/27
LEGAL
l+
Lir CL •�CC'C.._[!
CLG[ l"Chi/ r /
CN4
.
��:; �C
fY, 42 t i LC t Ci C•' E- 7`7J
1
C
V 0
MINUTES OF STAFF MEETING
October 5, 1977
Departmental referrals from the informal and formal Council meetings were distributed
to the staff (copy attached).
The City Manager requested that the Director of Public Works set up a meeting
with the Director of Community Development and the City Manager regarding the
waste water treatment plant site.
The Director of Public Works was asked to add the contract with Powers Willis to
subjects to be discussed at his weekly meeting.
A memo from the City Manager to all City employees was distributed to the depart-
ment heads concerning personal involvement in the City Council election. It is
important that division heads or supervisory employees give this memo to each
employee. If the employees have questions regarding this subject, they should be
referred to the Legal Department.
In response to a call from the League of Iowa Municipalities, the City Manager
asked for input from the staff regarding the community mental health center as to
what the State could be doing through the mental health centers to assist municipali-
ties. This information should be furnished to the City Manager in writing who will
pass it on to the League of Iowa Municipalities.
The City Manager cautioned the staff that new items should not be brought to the
attention of the Council at Council meetings until the staff work is completed.
The League of Women Voters is sponsoring a meeting with the City Council candidates
on Wednesday, October 12, from 7:30 P.M. to 9:00 P.M., in the Council Chambers.
Each department head should plan to spend about three minutes explaining what
current projects they have underway and basically what issues are current in their
department. The Legal Department was asked to check with the City Attorney to see
if he would be attending the meeting to represent his department. The department
heads should notify the City Manager if they will be out of town on that date.
Dennis Kraft will be out of town Monday through Wednesday of next week. Paul
Glaves will be in charge.
The City Clerk will be out of town Thursday and Friday of next week. The Deputy
City Clerk will be in charge.
The three asistant city attorneys will be in Des Moines along with the Director
of Human Relations on Friday, October 7, 1977.
385
FORMAL OCTOBER 4, 1977
DEPARTMENT REFERRALS
CI
DATE
REFERRED
DATE
Q w ¢
Q
SUBJECT
RECD
TO
DUE
2-78
o
COMMENTS/STATUS
�nw
a
W
Set public hearing on OCT 18
10/4
CTY CLRK
Place on Agenda
for Housing Maintenance and
A,a tit -jj; `-4 C ,
Set public hearing on Oct 25
•
for newsprint recycling project
10/4
CTY CLRK
Place on agenda
Review Energy Code to determine
if it should be adopted E admin
Defer Village Green final plat
approval for report from Parks
10/4
PARKS
Place on agenda Oct 11
Determine when HyVee will be
here
10/4
COMM DEV
Discuss at informal session
Discuss land acquisition for
PUB WRKSCOMM
- '. ' _ ,.•' < •
North Waste Water Treatment Pla
t
DEV
CTM MGR
David Perret-t will send informa
ion
re: expenditure control for
initiative E referendum in pkt
10/4
CTY MGR
0
POLICE DEPARTMENT
•
Monthly Report -- September, 7.977
General:
The Police Department received 2,326 citizen generated requests
for service during September. Because of a change in reporting
of nuisance calls effected two months ago, alarms and auto un-
locks are not included in the statistical summaries. These
totaled 461 during September thus raising the total number of
citizen generated requests for service to 2,787. A total of
forty-four duty hours was consumed in services to other City
Departments, deliveries, etc.
Some major categories of crime, notably rape, assaults, auto
theft, fraud and embezzlement, drunkenness, OMVUI, and property
damage vehicle accidents, increased substantially while others
decreased moderately or remained relatively stable.
Because of increased parking problems occasioned by the start
of the fall semester at the University of Iowa, arrests and
citations exceeded the number of citizen complaints. Arrests
and citations totaled 2,970 for September, up more than 800
from the prior month.
Forty-three cases were referred to the Detective Division for
further investigation. Twenty-nine cases were closed by arrest
or as the result of investigation.
Citizen generated requests for service addressed to the Animal
Control Division were about average, 150 incidents. It appears
as if public acceptance of the adoption fee schedule for pets
is gaining acceptance. More people are inquiring as to the
possibilities of adopting pets, and some inquiries are leading
to adoptions. Looking toward November and Thanksgiving, Animal
Control personnel picked up one turkey (the feathered type)
and will be holding it until the last Thursday in November as
a precautionary measure to check for rabies or infectious
diseases.
Statistical summaries are appended.
Personnel and Training
Approximately one-quarter of the officers attended a 40 hour
training course related to the new Criminal Code. Four officers
attended a specialized investigation school in Cedar Rapids,
while an additional four officers attended the first week of a
two week long fingerprint school in Davenport. A total of
720 hours were utilized in training.
Officers and staff participated in or conducted a total of forty
hours of meetings or sessions with civic groups, schools, etc.
COMPLAINTS RECEIVED BY POLICE
1. CRIMINAL HOMICIDE
2. RAPE
3. ROBBERY
4. ASSAULT
5. BURGLARY '
6. LARCENY
7. AUTO THEFT
is
OTHER_ ASSAULTS
9. FORGERY AND COUNTERFEITING
10. EMBEZZLEMENT AND FRAUD
11. STOLEN.PROPERTY
12, WEAPONS
13. PROSTITUTION
14. SEX OFFENSES
15. OFFENSES AGAINST FAMILY AND CHILDREN
NARCOTIC DRUG LAWS
LIQUOR LAWS
18. DRUNKENNESS
19. DISORDERLY CONDUCT
20. VAGRANCY
21. GAMBLING
22. DRIVING WHILE UNDER THE INFLUENCE OF LIQUOR
23. VIOLATION OF ROAD AND DRIVING LAWS
24, PARKING VIOLATIONS
n
0 0. of 0 0 0 0 0 l o
1 3 2 0 2 1 3 2 4
1 0 0 1 0 0 1 3 0 2
11 6 4 11 12 4 114 1 7 13
21 38 37 28 38 52 37 41 34
82101 125 189 182 1165 1173 1841 175
21 7 17 24 39 I 24 25 1 18 32
0 0 0 0 0 0 1 0 1 0 0 1
4 7 6 9 10 1 1 j 4 �5 5 1
I
32 1 25 9 17 16 12 113 5 11 I,
0 1 0 0 0 2 1 10 0 1
0 0 1 1 0 I 0 i 0 10 0
0 0 0 0 0 0 1 10 0 1
5 9 12 6 2 1 8 IT 1r 21 17 1
1
39 31 45 138 147. 155 145 143 148
3 11 3 1 7 1 7 1 12 '8 1 6 1 5 1
1 0 4 1 3 0 5 1 1 0 1 3
t-
22 14 13 19 25 i 13 9 19 122 i
45 51 37 I54 148 160 169 167 131
0 0 0 1 0 0 1 0 0 0 o
0 0 0 1 0 0 1 0 0 1 0 1 0 !
24 33 38 122 151 1 24 ;28 117 122
f
14 16 24 !46 147 43 98 !35 130
292 1 2531209 264 1181 ;203 '153 1192 .277
nr �: F_OLA^..0::5 Oc Tivu r:C A D i:(YiOn Cil1TCL I1t S:
2 � . scs�Icae7::
2'% MST:
29. rOU: T
30. ?ATAL 1'OTO!t 1B11ICL?: T!U�r?TC ACC..n!",lTS:
•31. 1 .MO!!}.L E%I TIT1 I:OTO! 1F":CCL MT -11f; ACCIil.''.`.75:
JAi'l,SC'.7(70^ VL,IICLC TIUSPIC ACC7M,'TS:
33. OT:L': TiJ 'IC I,CC_ E:!TS:
31:. ll DLIC ACrD!'''S:
35. 1107' I:CC^'_i12s:
�..�. _r. ♦ •. .. S .
'•'1. r ;1sa Acct^:. 5:
3G.
• 39.
1:0. SUICI^ES ATTL•11O'1'SD:
t
111, SUOMI DE;WT11 AIM 11.OD7TS FOCIID:
1:2. STC): cl.li".D r07i:
1:11. D0142'"IMMS:
1,5. JiM.11MES:
1:7. r1RES
rl 1r.r ntt rnoD
52
35
33 23
35
33
20 33
41
886
831
958
1191
114311055
954
10251988
19
29
78
87
96
75
83
61
65
45
45
34
62
52
55
64
149
47
25
38
88
124
167
149
126 25
118
1
0
0 0
0
0
0 0
0
i
14
14
16 28
19
24
26 30
28
269
128
116 T142
127
T121
116 1147
194
0
0
0 0
0
0
0 0
0
0
0
0 1
1
0
1 0
1
1
0
0 I 0
1
0
1 0
0
0
o o
o
o
o ID
1
F
00
0
0
1
0 1
0
58
77 62
71
60
81 48
44
0
0 1
0,
I 0
1 11
0
I
3
2
0 0
0
1
0 1
0
3
1
—
1 0
4
31
10
0
1
I
1
13
6 5
3
4
0 0
1
3
2
7 12
6
2
5 3
4
1
3
2 2
0
1
0 P
0
23
18
32
16
62 76
21 22
78
11
88
25
X55 <<
114 6
52
10
12
4
2 1
0
O Ir0
1
028 1857 O8525781252112381!2186�249i2326I
- �0
i i
ARRESTS MADE BY POLICE
1. CRIMINAL HOMICIDE
2. RAPE
3'. ROBBERY
4. ASSAULT
5. BURGLARY
6. LARCENY - THEFT
• MOTOR VEHICLE THEFT
8. OTHER ASSAULTS
9. ARSON
10. FORGERY AND COUNTERFEITING
11. FRAUD
12. EMBEZZLEMENT
13. STOLEN PROPERTY Buying, Receiving, Possessing
14. VANDALISM
15. WEAPONS Carrying, Possessing etc.
10 PROSTITUTION AND COMMERCIALIZED VICE
17. SEX OFFENSES
18. NARCOTIC DRUG LAWS
19. GAMBLING
20. OFFENSES AGAINST THE FAMILY AND CHILDREN
21. DRIVING UNDER THE INFLUENCE
22. LIQUOR LAWS
23. DRUNKENNESS
24. DISORDERLY CONDUCT
OI1b. r1l0. "Ut. It; L. ru.l. uu... uI..,..... .,.... W . .
0
i 0
0
0
0
0
1 0 0 1 0
1
1
1
0
0
0 0
0 1 0
0 j
1
0
0
p
0 f 0
1 2 1 0
1
2
8
4
6
3 1 3
I 7 I 0
0
0
2
0
3
1 I 1
1 2 1
0
I
8
9
15
9
12 7
y 1 7 10
i
0
0
0
0
1 1 0
1 0 0 1 0
1
7
4
4
3 3
17 10 1
1
0
0
0
p
1
I 0
0
1
2 1
1 1 I2 0
a
0
3
2
p
0 I 3
0 0 0
0
0
0
1
0 0
0 I 0 0
I
8
9
16
11 I
12 8
4 I S 12
0 1
3 1 3
2
—r-
0 5
0 0 1
I !
0
0 O;
O
I 0.i 0
1 0 12 1 0
0
0 0�
p
j
01 0; 0 IO i0
0
0 3
0 I
0 0 j 0 0 I O
' I
1
4 0
2
5, 3 2 127 0 1I� 1
0
0 0
0
Oi 0 10 o Io
0
0 0
0
I 0 i 0 1 0 0 0
15
17 15
16
I
28 14 16 �13 14
1
1 00� 0 0 2 0 1 1 1
10
9 9 �16 7'll ' 8 3 i g
3
•
6 4 1 5 11 2. 5 '10 X14 1 7
_ 25: VAGRANCY
26. ALL OTHER OFFENSES (Dog calls, Criminal Trespass, etc.)
27.
28.
SUSPICION
CURFEW AND LOITERING
29.
RUN AWAYS
30.
TRAFFIC
31.
PARKING
I.•
•
TOTAL ARRESTS
n
0
2
0
0
0
0 0
p
0
34 1
47
167
58
49
88 34
31
25
0
0
0
0
0
0 I 0
0 I
0
1
1
0
0
0
0
O
l 0 I 0 1
0
Q
I
1
0
0
0
0
0
0 0
I
0
1
0
j
135
435
492
470
343
198 1282 1291
1297
1681
20711597
1820
901 1658
17411172L2594
1902
26392331
2424
13691008
123 121:1
2970
I
1
1
1 '
1
I
1
1
I
'
1 i '
I
i
• ANIMAL SIMMER MONFIILY REPO*
maim I p 19
This Month 111i.s 1-bhth This Year Last Year
(L.c:t Year) to Date to Date
jar, Cuiiplaints _
Cit Complaints
41
J 7
Total Complaints
Impounding Record
Voluntary (Dogs)
Pick up (Dogs)
Owner (Cats)
Stray (Cats)
so
103
7 6,69
9
100
Disposals
Dogs Adopted
Dogs Reclaimed
Cats Adopted
yeclaimed
Cats R
SUI DOGS
.21-03
193
76
13
SUI CATS
P.T.S. Dogs
P.T.S. Cats
.13
4Cefpfem-P fefsfrv& to.
Revenue (in dollars)
Adoptions
Sul
Impounding
J, V, "
.o d di�s;ls
oo
y 5 0 .So
b Q`ra#4
? Sa
112 9 Al.
So
9 213,vo
011
^�
.Io.Co• •.�5
Tickets Issued
-: /� • o
By. o�
33
Other Animals Picked Up
Raccoon
Opposum
Bats
Birds, Fowl
Wild, other
Skunk
Livestock
Other
O
9
41
Dog Bites
Other Bites
Cat Bites
129
Rabies (Confirmed)
O
O
y
Dead Animals Picked U
r000es wt
!(profs
Dumped c:1S
Bikes
coos
39
n
parks 8e recreation
MEMOdepartment
to: Dennis Showalter, Director from: Bob Howell, Park Superintendent
re. September Monthly Report date: October 3, 1977
NVI
I. Work Projects (park areas)
A. Installed new light switches in City Park picnic shelter.
B. Installed chair seat swings in various parks for pre-school
aged children.
C. Chisel -plowed Little League ball diamonds.
D. Transplanted crown vetch (ground cover) from Clinton
Street berm to Black Springs Circle Park.
E. Filled, leveled, and seeded areas in Villa College Green,
City, and Pheasant Hill Parks.
F. Placed concrete bumpers on center line of City Park parking
lot for traffic control.
G. Constructed new skating ramp at shelter #13 in City Park.
H. Removed asphalt base from the spiral slide in Mercer Park
and filled with sand.
I. Replaced water shut-off in Upper City Park.
J. Enclosed small animal doors in old zoo building with
• concrete.
K. Repaired and stained foot bridges in Terrell Mill and
hickory Hill Parks.
L. Installed new water line and drinking fountain for Little
League in City Park.
M. Built two soccer goals for Recreation Center.
N. Placed 13 planter boxes on new downtown pedestrian mall
area and planted them with globe arbor -vitae.
0. Started construction of new ramp area for handicapped
next to Recreation Center on College Street.
P. Performed regular park maintenance operations.
II, Work Projects (other areas)
A. Sludge hauling for Pollution Control - 66 hours.
B. Cabinet for Finance Department - 20 hours.
C. Washington Street plantings - 28 hours.
D. Downtown cleanup - 33 hours.
E. Urban Renewal - 79 hours.
III. Administration, Miscellaneous
A. Awarded bids for Villa and City Park plantings - September 12.
B. Meeting with Little Leauge representative about drinking
fountain and ball diamond maintenance - September 19.
• C. Preview of FY 79 Budget - September 16.
D. Staff meeting with Director - September 28.
E. Pre -construction conference for Mercer Park Lighting Contract
for two ball fields - September 30.
RM
0 •
Park Division
September Monthly Report
Page 2
IV. Status of FY 78 Goals and Objectives
/ef
A. Arboretum - in the planning stage with the site not yet
designated. Area adjacent to Hickory Hill Park originally
planned for site has been eliminated due to sale of property
to private party.
B. Approximately 30 acres of riverfront property has been
purchased by the City. This site will be used for two
additional softball fields.
C. Handicapped area at Mercer Park play and picnic area - no
action.
D. Crown vetch has been transplanted from Clinton Street berm
to Black Springs Circle Park. Approximately 80% of the
bank area has been completed.
E. Several small areas in various parks have been prepared
and seeded to grass. Six (6) acres of old landfill have
been seeded to K-31 fescue. New trees and shrubs will be
planted at Villa and City Parks in October.
F. No training sessions have been held to date. Scheduling
of sessions will be set up for the winter season.
G. Vandalism has not been a major problem. Most instances
have been corrected with minimal cost. A log is being kept •
of all acts of vandalism that are acknowledged by park
personnel.
H. Mass plantings at Glendale, Terrell Mill, Court Hill, and
Sturgis Ferry Parks will be planted in the spring of 1978.
Design and selection of plant materials will be done this
winter.
0
C�
parks & recreation
department
to, Dennis Showalter, Director
re. September Monthly Report
I. Operational
A. Interments
•
MEMO
from: Billie Hauber, Supt
Cemetery -Forestry
date: September 30, 1977
0"N
of
III. Budgeted Items and Special Projects
A. Budgeted Items
1. Paint front steps - 4 hours.
2. Chemical control of weeds - 4 hours.
B. Special Projects
1. Repair vandalized fence - 1 hour.
2. Replace broken storm drain - 32 hours.
• 3. Repair sunken graves - 21.5 hours.
4. Plant Crown Vetch on bank - 4.5 hours.
5. Plant pruning - Civic Center parking lot - 8 hours.
TOTAL = 75 hours
ME
1. Ashes
0
$ 00.00
2. Regular -weekdays
4 @ $125
$ 600.00
2 @ $185
$ 370.00
3. Saturday
0
$ 00.00
B.
Lots sales
1 @ $175
$ 175.00
1 @ $55
$ 55.00
TOTAL INCOME
$1,200.00
C.
Lots re -purchased
0
00.00
TOTAL PAID OUT
00.00
II. Maintenance
•
A.
Forestry (inside Cemetery)
- 6.5 hours.
B.
Forestry (outside Cemetery)
- 43.5 hours.
C.
Cemetery (general grounds
maintenance) - 327.5
hours.
D.
Cemetery (general shop &
office maintenance) -
13.25 hours.
E.
Preventative maintenance
(vehicles, mowers, etc.) -
70.5 hours.
F.
Lot locations, lot sales,
and related records -
8.5 hours.
G.
Outside mowing and/or grounds
maintenance - 68.75 hours.
H.
Funeral time (regular) -
95.5 hours.
I.
Funeral time (overtime) -
3.5 hours (actual).
TOTAL = 637.5 hours
III. Budgeted Items and Special Projects
A. Budgeted Items
1. Paint front steps - 4 hours.
2. Chemical control of weeds - 4 hours.
B. Special Projects
1. Repair vandalized fence - 1 hour.
2. Replace broken storm drain - 32 hours.
• 3. Repair sunken graves - 21.5 hours.
4. Plant Crown Vetch on bank - 4.5 hours.
5. Plant pruning - Civic Center parking lot - 8 hours.
TOTAL = 75 hours
ME
0
Cemetery -Forestry Division
September Monthly Report
Page 2
IV.
9M
VI
0
Contracts and Specifications
A. Cemetery monument repair contract - completed.
B. Forestry contracts - Noel - trimming and removal - on
schedule.
C. Forestry contract 78 -8710tH ready for mailing.
D. Plant replacement on City streets - not yet completed.
E. Cemetery water line - no action.
F. Cemetery roof - Engineering working on plans.
Special Projects - Superintendent
A. Weed Ordinance - met with Legal and work continuing.
B. Burial permit problem - directive from Legal and
Administration.
C. Muscatine Avenue plantings and Center East project with
Engineering.
D. One Director/Supervisor meeting.
E. Meeting with involved Staff relating to house moves.
F. Complaints resolved during September:
1. Forestry connected - 30.
2. Weeds - 82.
3. Additional complaints being processed currently -
31. Two citations issued for October court
appearances.
G. Genealogy requests - 12 - 8 hours time.
H. Budget for 1979.
FY 78 Goals
A. Cemetery Goals
1. Performance teamwork via two person crew and
specialized equipment - needs further improvement.
2. Improvement of public relations - an on-going
project.
3. Renovation of Cemetery facilities:
a. Roads - next spring.
b. Maintenance roof - no recent action.
c. Water lines - no action.
d. Expansion of maintenance shed - abandoned.
4. Efficiency report:
a. Regular duties - 637.5 hours.
b. Special duties - 75 hours.
c. Rest periods - 46.5 hours.
TOTAL HOURS - 759
17% of crew's actual working time spent outside
Cemetery.
•
is
Cemetery -Forestry Division
• September Monthly Report
Page 3
/ef
•
•
B. Forestry Goals
1. Reduction of citizens' inquiries and/or complaints -
marked improvement due to advance notices.
2. Continuation and development of Forestry records -
up-to-date and on-going.
3. Reduction in the amount of emergency tree care - poor
showing due to lack of qualified bidders on contracts.
0
parks & recreation
ide-Dartment
0
MEMO
t o:Dennis Showalter, Director from: Bob Lee, Superintend
ent of
Recreation re•September Monthly Report date. October3, 1977 A. Status of 1976 Program Goals
1. Better advertising by distribution of leaflets using
meter readers does not appear to be feasible at this
time.
2. Leisure needs surveys have been continued with one
conducted during the summer months. The number of
responses totaled 102 in 7 different city blocks.
Tentative plans have been made for a fall survey.
Completion - 50%.
3. Recreation Center elevator - plans are drawn and the
contract has been let to Paulson Construction Company
for $79,500 to be completed by April 1, 1978.
Completion - 10%.
4. Provide for 600 a month in S.P.I. - attendance figures
at times now reach 800. Completion - 100%.
5. Provide a 15% increase in senior citizen opportunities -
• completion - 50%.
6. Added tennis instruction availability - completion - 30%.
7. Provide opportunities for softball league expansion -
completion - 0%.
8. Train interns - 30% completion.
9. Employ youth in Playday - completion - 0%.
10. Alter Mercer Pool re -circulation system for adequate
water turn over - 50% completion.
11. Install pump and recover 75% of City Park pool water loss -
testing by smoke has determined some areas where leaks could
occur and, anticipating these repairs, the recovery project
has been tabled.
12. University of Iowa Division of Recreation Services
coordination - preliminary conversations have been held.
Completion - 10%.
B. Administration
1. Mike Unger, Center and Sports Supervisor since August of
1976, resigned to accept a position as Director of Parks
and Recreation for Waverly, Iowa.
2. David Byrd, Aquatics Supervisor since October of 1974,
transferred to Mike's job, opening the aquatics job to
new applicants. .Judy Olson, a part-time employee with
many different job experiences in our department, was hired
• to begin on October 1, 1977.
3. Rally Adams, David Byrd, Marilyn Levin, Jan Lown, and Bob
Lee attended the Iowa Parks and Recreation Association
Conference and meeting in Sioux City. Bally Adams was
elected as a member of the Board of Directors. Jan Lown
conducted a conference session on New Games.
Irm
Recreation Division
September Monthly Report •
Page 2
C. Physical and Aquatics Activities
1. Registration for basketball and volleyball leagues
opened through September 30. A managers' meeting was
scheduled for early October.
2. Flag football for boys and girls in grades 5 and 6
began on September 17 at eight sites; twelve teams have
been formed.
3. Playday for grades 1 through 6 is scheduled to begin on
October 1 at the Center. All facilities are open and
available with a variety of activities to interest the
elementary child. The swimming pool is open from
9:00 to 11:00 a.m. without charge to children.
4. Routine fall activities began with roller skating on
Tuesday evenings, volleyball on Wednesday and Friday
mornings and Thursday evenings, supervised archery on
Monday through Friday evenings, racquetball, fitness, and
kindergym classes.
5. Swimming classes began for children after school with a
second session to begin on October 17. Adult classes are
held in the early afternoon and late evening.
6. City Park pool closed for the season on Labor Day. Smoke •
tests have been made to determine cracks in the pool
where we may be losing water. Repairs are to be made
accordingly.
7. Mercer Park pool, which closed to the public on August 28,
was used by Southeast Junior High P.E. classes during
September. It is now drained and being winterized.
D. Special Programs
1. Activities for the developmentally disabled beginning in
September were the Sports Club at Longfellow School and
music at the Center for adults and teens.
2. Swimming instructional programs are also underway on
Saturday mornings.
3. An art class for physically handicapped teens and adults
is now taking place at the Center on Thursdays.
4. The bowling program at Plamor Lanes resumed on September 30.
5. The "Goodtimers" adult social club is now being directed
by our department.
6. Other activities now taking place are dance at Longfellow
School, ceramics at the Recreation Center, and games at
Goodwill.
E. Cultural and Social Programs
1. Drop-in crafts began at the Center on Tuesday afternoons.
2. Horizons, a variety program for children in grades 1 through
6, will begin on October 1 at the Center on Saturday
afternoons.
ASERP activities began at 12 schools and Mark IV on
Recreation Division
• September Monthly Report
Page 3
/ef
•
•
September 26 including soccer, astronomy, airplane
building, macrame, and gymnastics as well as the old
standbys.
4. Classes in nine arts and crafts activities began in
September.
5. "The Troupe" children's drama group resumed practices, etc.
following a successful and fun -filled summer.
6. Jan Lown conducted a workshop in "New Games" for 25 people.
7. Two trips were held for senior citizens - one to the
Old Settlers and Threshers Reunion and an overnight trip
to Milwaukee.
8. The Rhythm Band had a performance at the mini -park and
performed for the AARP.
0 0
AGENDA
IOWA CITY PARKS AND RECREATION COMMISSION
• RECREATION CENTER ROOM B
OCTOBER 12, 1977 - 7:30 P.M.
7:30
- 7:35
p.m. --
Approval of the minutes of the September 14
meeting.
7:35
- 7:40
p.m. --
Introduction of Ruth Skelley, new member
from the School Board.
7:40
- 7:50
p.m. --
Committee Reports, Public Discussion.
7:50
- 8:00
p.m. --
Plum Grove Acres - Schmeiser, Boothroy.
8:00
- 8:30
p.m. --
Goals and Objectives for FY 79 - Lee, Rowell,
Hauber.
8:30
- 8:45
p.m. --
Camp Cardinal - Showalter.
8:45
- 9:15
p.m. --
Land acquisition - Showalter.
9:15
- 9:30
p.m. --
Chairperson's Report.
9:30
- 9:35
p.m. --
Director's Report.
• 9:35
p.m. --
Adjournment.
•
386
0
0
CITY OF IOWA CITY
CIVIC CENTER 410 E. WASHINGTON ST IOWA CITY IOWA 52240 (319) 35,41800
PRESS RELEASE
Beggar's Night
October 5, 1977
In the past, City officials have designated the night youngsters trick or
treat for Halloween.
Beggar's Night will be observed Sunday, October 30. Children will also
make UNICEF collections on that evening.
The annual Children's Parade, sponsored by Parks and Recreation Department,
will be Saturday, October 29, at 6:30 P.M.
FROM: Administrative Offices
Iowa's new tax law:
`2 different views'
By CHARLES BULLARD
aWIW xba W~
As the Iowa Legislature was
wrestling with the controversial
property tax package last spring,
some legislators said
the measure would
reduce the property
tax bills of farmers
and raise those of
urban homeowners.
The proposal's
defenders, who even-
tually prevailed, said °! `
it would maintain
the status quo and JL :
prevent a shift in the MEW u
relative property tax r'atm
burdens borne by farmers and home-
owners.
Who is right?
Dr. Steven Gold, an associate
professor of economics at Drake Uni-
versity and an acknowledged expert
on Iowa property tax, has studied the
new law and concluded that both
groups are correeL
Each group is looking at the bill
from a different viewpoint, however,
Gold explained Wednesday.
Benefits Farmers
Those who believe the law benefits
farmers at the expense of homeown-
ers are comparing what the law will
do with what would have happened If
no bili had been passed, said Gold.
Those who believe the law don not
benefit any particular group of
property owners are comparing what
the law will do with the current
property tax situation, he said.
"I think they are both valid ways of
looking at it," Gold said.
Tax Shares Change
Local tax shares change whenever
one type of property Increases in
value faster than another.
The first year of the two-year law
affects 1978 assessments, which will
be the basis for property taxes
payable from July 1, 1979, to June 80,
1980.
The first group is comparing what
will happen in 197M with what
would have happened In 197940 If
nothing had been done, be said.
Avoids Large Sidits
"The law avoids large shifts that
would have taken place," said Gold.
"Owners of farmland are the biggest
gainers. Businesses definitely lose.
For homeowners, the situation is
more complicated since It depends on
whether they live In a rural area,
small town or big city....
"If there had been no change In
assem. ment laws," he said, "farm as-
sessments would have risen approxi-
mately 60 per cent statewide and
home assessments 35 per cent from
1977 to 1978."
The first group uses this to support
its contention that farmers would
have had to shoulder a bigger portion
of the property tax burden, leaving
homeowners with a smaller share.
Because the law blocks this shift,
farmers benefit and homeowners
suffer because they don't gel the
break they would have received, the
first group contends.
Second Viewpoint
The second group is comparing
what will happen in 1979.60 with
what is happening now.
On a statewide basis, the new law
limits the increase in valuationF
placed on farmland and horses to 6
per cent.
"Since farm and home assessments
can increase just 6 per cent, there
will be relatively little change (from
the present situation)," said Gold.
And because farmland and home
valuations will be going up the same
amount, on the average, neither
category of property will end up
paying more,than it current share,
according to Gold.
The law's defenders use this to
support their contention that home.
owners will be no worse off than they
are now.
Business Property
One thing is known for sure.
Business or commercial property will
be bearing a larger share of the
properly tax burden during the
two-year period covered by the law
— 1979.81 — because the Legislature
did not limit assessments on that type
of property.
Apartments are classified as com-
mercial property so many apartment
dwellers may find the tax increase
passed along In the form of higher
rent.
A complicating factor: The 6 per
cent ceiling on farmland and home
valuations is a state-wide average,
and assessment increase on individ.
ual parcels of property may be higher
or lower than 8 per cent.
These variations from the norm
:mild result In local shifts in flit
properly lax burden from one
category of property to another,
according to Gold.
0
"In some places, the shift, will
differ substantially from the general
pattern because assessment increases
are limited to 6 per cent stale -wide,
not within each jurisdiction," he said.
"In some counties, farm assessments
will drop in 1978 rather than Increase
6 per cent; In other counties, values
will Increase more than 6 per cent.
"Thus, although ... it was stated
that there would be little change In
tax shares In 197940 compared to the
present, this Is not flue in all place.
For example, in Polk, Linn and
Warren counties, where farm assess-
ments will drop.sharply, there will be
sizable shifts."
Effects Differ
The effect of changing assessments
also differs according to the composi-
tion of the property in a particular ju-
risdiction, Gold noted.
In rural areas where most of the
taxable property is agricultural, farm
property will pay most of the
property taxes, regardless of what
happens to valuations, he said.
However, even a small change in the
tax paid by farms results in a large
percentage change in non-farm taxes
becausf there Is so little non-agricul-
tural property.
In metropolitan areas where most
of the taxable property is homes and
businesses, those two categories will
pay most of the property taxes, no
matter what, according to Gold.
However, Increases or decreases In
the taxes paid by those two classes of
property will have a dramatic effect
on agricultural property lases In that
jurisdiction because there Is so little
farm properly.
In those counties where there is a
balanced mix of farmland, homes and
businesses, tax shifts due to changing
valuations would be more significant,
he said.
Second Year
In the second year covered by the
law — 1980.81 — there will be a
small shift adverse to homeowners
because home assessments, on a
slalo-wide basis, will go up 6 per cent,
and average farmland valuations will
MR
0
go up only 2 per cent, according to
Gold.
This was not anticipated by the
Legislature, he said.
The small shift will be caused, he
said, because farmland assessments
will be based entirely on productivity
rather than 50 per cent on productiv-
Ity and 50 per cent on market value,
as is the case now.
The Legialalure was told productiv-
ity would Increase 6 per cent the
second year, matching the 6 per cent
limit on home valuation Increases,
but. productivity was lower than an-
ticipated,explained Gold.
Disparity
The disparity between farm pro-
ductivity and home values probably
will Increase In the future, Gold
warned.
"It won't do to extend the law
0
because the Impact of (farm) produc-
tivity will be much greater in the
1980s, " said Gold.
Gold predicted that the use of pro-
ductivity probably will cause an
actual decrease In farm property
taxes payable In 1965.8/. The
decrease, he said, would have to be
made up by other categories of
property, Including urban homes.
•
The
Building Line
Vol.?
October, 1977
City of Iowa City, 410 E. Washington, Iowa City, Iowa 52240 (31.9) 354-1800
MODEL COME FOR ENERGY CONSTRUCTION IN NEW BUILDING CONSTRUCTION
A model code for Energy Conservation applying to new building construction of or greater
than 100,000 cubic feet has been recommended to the City Council by the Resources Con-
servation Commission. It is recommended for implementation on January 1, 1978.
The requirements of this code shall regulate the design of building envelopes with ade-
quate thermal resistance and low air leakage and the design and selection of mechanical,
electrical service, and illumination systems and equipment which will enable the effec-
tive use of energy in new building construction.
The City Council has scheduled this code for a public hearing on October 4, 1977 at the
regular council meeting. Copies are available at the City Clerk's office and the Iowa
City Public Library for public review,
FIRST NO -INTEREST REHAB LOAN APPROVED
The Housing Rehabilitation Program
held its first loan closing in early
September. Construction on this
$14,000 contract has begun. Federal
Block Grant funds totaling $212,038.
have been allocated for these Rehab
loans which can be lent to owner -
occupants of one or two family homes.
Loan proceeds may be used for a vari-
ety of projects. Code items have the
highest funding priority but funds
may also be used for insulation, res-
toration, fire protection and other
general improvements. The maximum
term of the loan is 15 years with no
interest charge. The maximum loan
per dwelling unit is $17,400.00.
CONTRACTORS:
To date, $60,000 has been committed
to Rehab projects. Another $100,000
is out for bids.
There is over $250,000 more to be
spent.
CALL JIM LEIGHTON - 354-1800
ext. 328
SECTION 202
HOUSING INSPECTION DIVISION
During the past year the Housing staff
has completed initial inspections in a
central area of the City. The bound-
aries of this area are Brown Street on
the North, Dodge, Muscatine and Summit
on the East, the Rock Island Railroad
tracks on the South, and the Iowa River
on the West. To assure code compliance,
re -inspections on these properties have
been undernaay for many months. At this
time a relatively small number of pro-
perties remain in violation, and the
staff is now attempting to gain compli-
ance. In some instances, administrative
review, legal prosecution, or condem-
nation measures have been undertaken.
The criteria used for condemnation is
the existence of conditions which affect
the health or safety of occupants.
Unsanitary maintenance, lack of fire
extinguishers or approved fire escapes,
and faulty wiring are examples of such
conditions.
On the whole, owners and property man-
agers have been most cooperative with
the efforts of the Housing Division.
First Christian Church and Systems Unlimited have received four million dollars of
Section 202 loan funds for rental housing. First Christian plans 100 units and Systems
Unlimited is planning 48 units.
Section 202 provides direct Federal loans for the construction or rehabilitation of
rental or cooperative housing for the elderly or handicapped. The loans, which have a
maximum term of 40 years, are made to nonprofit cooperatives or corporations. Con-
struction of the project must begin within 18 months from the time the funds are
reserved. Section 202 loan is then repaid from the rent receipts. Each 202 project
is automatically provided a Section 8 Housing Assistance Payments Contract which will
provide a raatal assistance to the persons/families occupying the units. This amounts
to the difference between 254 of the tenants income and the IND approved rent for the
project, 870
0 •
NEW BUILDING CODES :DOPITD
Effective September 6, 1977, the Iowa City Council adopted the new 1976 Regulatory
Building Codes. There are several amendments to the codes which are available at
the permit counter. There have been several changes this yenr which include such
things as sill heights for windows, window sizes, guardrail heights, ceiling
access holes, etc. These amendments are free of charge and are now available for
distribution should you like one. The City also has copies of the regulatory
codes available at the Finance Department. The fees for these codes are as follows:
Uniform Building Code $16.00 Uniform Fire Code $10.00
Uniform Plumbing Code 10.00 Dwelling Construction 3.00
Uniform Mechanical Code 10.00 National Electric Code
Iowa City Zoning Ordinance 1.00 (plain bound) 5.50
42" X 60" Zoning Map 2.00 (loose leaf) 7.75
24 X 36 Zoning Map 1.00
The Iowa City Zoning Code has had several amendments within the past year. We have
updated our Zoning Code to include these amendments and they are now available.
I#Y#Y##YYY##rtrtYrtYYYY##Y#rtY#Y###Y#Y####YYYY#YY#YY#Y#Y#Y##YYYY#YY##rtTYrtrtTY##YY#YYYYYYYY#Y#rtYY#Y########
HOUSIN(. ASSISTANCE PROGRAM
During September, 20 units were brought into
the Section 8 Program. There are 30 units
left in Section 23.
Total units, Section 8 • 242
Autumn Park is fully occupied.
Housing Commission Meeting - 10/5/77 to
discuss the Housing Maintenance Code.
MINIMUM HOUSING CODE
During September, 1977, 204 structures
were inspected containing 758 dwelling
units and 674 rooming units. 362
dwelling units and 128 rooming units
were found to be in compliance with the
Minimum Housing Code of Iowa City.
396 dwelling units and 546 rooming units
did not comply with the Minimum
Housing Code.
BUILDING INSPECTION
During the month of September, 54 Building Permits, 9 Mechanical
Permits, 8 Plumbing Permits, and 27 Electrical Permits have been
issued by the City. The total value of all September construction
in Iowa City is $704,922.00. There were no Demolition Permits.
991 '014 l!"d
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I
Agenda
Comprehensive Plan Coordinating Committee
Thursday, October I3, I977 -- 7:30 P.M.
City Manager's Conference Room
I. Approval of Minutes from September Meeting.
II. Issues and Alternatives.
III. Moratorium Areas.
IV. New Business
V. Adjournment.
s. Meeting Objectives:
I. Continue Review of Issues 4 Alternatives Analysis and Recommend
Alternatives.
II. Discuss and Recommend Additional Areas for Building Moratorium
Pending:
I. Annexation
II. Scott Blvd.
Next Meeting: October 27, 1977.
387
0
ISSUE: N: How should library facilities be improved?
The current library facility is recognized as being inadequate to meet the needs
of our community. Expansion of the current facility is inappropriate due to many
problems of the existing structure. The alternatives considered include building
a single, new downtown library and building a new downtown library plus branch
libraries.
Alternative 1: Build it new library on the Linn -College corner.
Land Use and Social:
1. Will be adjacent to pedestrian mall, so will maximize safety and access from
CBD.
2. Will be less than one block from the parking ramp, so will maximize driver
access.
3. Will probably generate additional traffic on the College -Linn corner as a
"drop-off" and "pick-up" site, and may require short-term parking spaces.
4. Will eliminate a prime retail location which could be used immediately.
Economic:
1. Would necessitate a major capital expenditure financed by a general obligation
bond.
2. Would provide a pedestrian traffic generator for the College Street mall.
3. Would permit the re -use and/or redevelopment of the existing library site.
including the existing library building.
4. Would eliminate from private redevelopment a prime CBD site.
S. Future expansion on this site would be limited to additional vertical con-
struction which is more costly than single level construction.
6. Could increase property values for adjacent properties in the same way that
a park increases adjacent residential property values.
Environmental:
The "downtown" location will require more extensive automobile use with the
resultant pollution and fuel consumption than if branch libraries are available.
However, a single downtown trip will permit a combination of library use and
other errands.
Legal:
1. Constitutional: Appears to raise no constitutional issue.
2. Lode: A special City election with notice will be required. Sixty percent
approval is required. (27)
3. Case Law: Aproposition to issue bonds to construct it library building
required the approval of at least 60% of thu,o voting in order to be deemed
carried. Op. Atty. Gen., Feb. 17, 1969,
Alternative 2: Build a new library on the parking lot of the existing library,
and tear down the existing structure.
Land Use and Social:
1. Will be less than one block from parking facility, so will maximize drive•
access.
3,6V
• z •
2. Will be very accessible to the recreation center for inter -facility programs
and use.
3. Has area available for on-site parking spaces.
4. Will be within a block of the pedestrian mall in the CI3D.
5. Will have more area, especially if the existing building is torn down, for
landscaping, benches, exits, and for the structure itself.
Economic:
1. Would require a major capital expenditure, financed by a general obligation
bond.
2. Would permit private redevelopment of Lot 65-4, which would produce additional
property tax revenue and base.
3. Would permit the continued use or future conversion of the existing library
building.
4. If the existing building is found to be no longer useful at some future point
in time, it would permit the demolition of the building and then the single
story expansion of the new facility in its place.
Environmental:
Same as Alternative 1.
Legal:
Analysis of Alternative 1 applies.
Alternative 3: Include branch libraries in addition to the new facility.
This alternative includes the location of small branch libraries at some
elementary schools or shopping areas. It also includes the possibility of
bookmobiles.
Land Use and Social:
1. Branch libraries would increase the use of public facilities and existing
street pattern.
2. Would increase neighborhood identity and involvement.
3. Bookmobiles would have a larges selection of location and would not require
space in existing facilities.
4. Several schools and shopping areas would provide possible locations for branch
libraries east of the river, but west of the river there are few facilities
and little excess capacity.
S. Would make library services available to a larger portion of the area popu-
lation, especially to the less mobile.
6. May decrease the use of the central library somewhat, also decreasing the
amount of traffic it generates.
Economic:
1. Would require a comparatively small initial capital expenditure.
2. Would probably increase operating and maintenance costs since decentralized
facilities would require more staff support. Additionally, if programs and
hours are expanded, added staff will he required.
3. If library facilities become decentralized, additional books, equipment,
furnishings and related materials will be required to adequately furnish
the facilities.
Environmental:
This will somewhat decrease automobile use for library trips, since branch
libraries or bookmobiles will be accessible by foot or bicycle to more people
or require a shorter drive.
Legal:
Analysis of Alternative 1 applies.
SUMMARY TABLE
Land Use Economic Environmental Legal
and Social
Alternative 1 +/- +/_ - +
Alternative 2 + +/_ +
Alternative 3 + _/+ + +
FOOTNOTES
Legal
1. The acquisition, construction, reconstruction, enlargement, improvement and
equipping of libraries is a "general corporate purpose" under Iowa Code,
Section 384.24 (4) (c). As such, the provisions of Iowa Code, Chapter 384,
must be met to contract indebtedness and issue general obligation bonds to
provide funds to pay all or any part of the costs of a project. Thus, a
special City election with notice will be required.
ISSUE 0: How much recreation equipment and facilities should the City provide?
The provision of indoor recreation facilities in Iowa City is a complicated issue.
Both the City and the University provide quality indoor recreation areas. In
order to meet expanding demands, two principle questions need to be answered.
10iat standards should we use for planning, and how do we count university facil-
ities and students? Should we expand existing facilities, or should we modify
under-utilized school facilities to expand capacity?
Alternative 1: Expand recreation center to include additional facilities.
This alternative assumes the expansion of only the recreation center.
Land Use and Social:
1. The existing recreation center is very accessible by transit and other trans-
portation and is convenient relative to other facilities.
2. Is on a large enough site that acquisition of land will not be required.
3. Will not affect the traffic pattern.
4. Is centrally located so it does not benefit any geographic group more than
any other.
5. Will probably not increase capacity enough to meet demand for certain facilities.
Economic:
1. Would require a major capital expenditure, probably requiring issuance of a
general obligation bond to finance it. (See comment.)
2. Although additional staff would be required to maintain and operate an expanded
facility, certain savings can be achieved through centralizing those facilities
in a single building.
3. Would permit the continued collection of user fees to help the operation of
recreation programs.
4. Would not require the public acquisition of any additional tax producing land.
Environmental:
1. Expansion of centrally located center may cause some increase in automobile
use (and, therefore, pollution and fuel use) especially at times when buses
are not running.
Legal:
1. Constitutional: Appears to raise no constitutional issue.
2. Code: A special City election with notice will be required to contract indebt-
edness and issue general obligation bonds to pay all or any part of the costs
Of the project. Sixty percent approval is required.]
3. Case Law: Indeterminate.
Alternative 2: Work with the University of Iowa in providing recreation facilities
adequate to meet adopted community standards.
This alternative assumes that some form of formal agreement between the University
and the City will establish creteria for whom, how much, and what type of recre-
ational facilities will be provided.
387
• 7 •
Land Use and Social:
1. Coordinated efforts can provide recreation facilities more efficiently in terms
of cost, buildings, utilities, personnel and use.
2. A program which combines City and University facilities will be much closer to
meeting community needs and standards.
3. The increased number of usable buildings will be more efficient in terms of
personal time as the need to travel will be reduced.
4. Those people not connected with the University can benefit the most as this
will increase their personal choice.
Economic:
1. would reduce the City's need to invest in new facilities since existing facil-
ities could be used more intensely; new facilities would only be provided when
existing City and University facilities combined could not provide adequate
levels of service.
2. Savings in operating and maintenance costs could be achieved by shifting part of
the demand for recreation facilities/programs onto University of Iowa facilities.
3. Could permit the construction of any new capital facilities on University -owned
land and, thereby, reduce the need to use tax producing property.
Environmental:
Comment: Environmental impacts for Alternative 2 cannot be assessed until the
location of possible new facilities is known.
Legal:
Legal Impact: Indeterminate.
1. Constitutional: Appears to raise no constitutional issue.
2. Code: A formal agreement between the University and City to establish criteria
Tor who, how much, and what type of recreation facilities will be provided would
involve the differing jurisdictions of the State hoard of Regents and the City
and the differing requirements as to contracts and bonding that would be involved.
Logically, this alternative should be explored with University officials before
a thorough analysis integrating all applicable code sections to determine feasi-
bility is carried out. If the University is interested in working with the City
in providing recreational facilities adequate to meet adopted community standards,
an analysis of all code provisions relating to City Finance, Public Contracts
and Bonds, and State Universities Building Facilities and Services Revenue Bonds
would be in order as a first step. The applicable code sections do not appear
to prohibit such an arrangement, though potential problems do exist.
3. Case Law: Indeterminate.
Alternative 3: Expand indoor recreation facilities at a site other than the recre-
ation center.
This alternative assumes that school facilities will be modified for greater utili-
zation by all members of the community.
Land Use and Social:
1. will reduce need to travel downtown, so is efficient in terms of personal time.
0
-3- 0
2. Will generate some additional traffic on adjoining streets.
3. Will provide increased pedestrian and bicycler access.
4. Will require expansion of facility that is on a large enough and well -located
site.
S. Will encourage neighborhood interaction for that area which can enhance neighbor-
hood identity and image.
6. Increased activity around the facility may be disruptive to surrounding residences,
so, where possible, larger lot size for the facility and buffering (trees, fences)
should be provided.
7. Will require coordination in the provision and location of public facilities.
8. Will increase personal choice and particular]), benefit those in nearby
neighborhoods.
Economic:
1. Would increase the supply of major capital facilities without substantial
capital expenditures.
2. Would increase operating and maintenance costs as additional staff would be
required to operate these additional facilities.
3. Utilizing existing structures such as schools would not require using additional
tax producing land.
4. Would permit resources to be directed toward the development of equipment and
programs rather than capital structures.
Environmental:
1. Will probably decrease automobile use if facilities are within walking or
bycycling distance, or require shorter drive.
2. This may increase indoor recreation space at the expense of outdoor open space,
depending on surrounding land uses.
Legal:
Legal Impact: Analysis of Alternative I applies.
SUMARY TABLE
Land Use Economic Environmental Legal
and Social
Alternative 1 + 0 +
Alternative 2 + +/_ o p
Alternative 3 + + + +
• 4 •
COMENTS AND ':OOTNOTHS
Fconomic
The Capital Improvements Budget for 1976-191) estimates the recreation expansion
project at $500,000.
Legal
1. Recreational facilities are "city enterprises" under Iowa Code, Section
384.24 (2) (c) and the acquisition, construction, reconstruction, extension,
improvement and equipping of city enterl•rises is a "general corporate
purpose" under Iowa Code, Section 384.24 (4) (a). As such, the provisions of
Iowa Code, Chapter 384 must be met to ccntract indebtedness and issue general
obligation bonds to provide funds to pa all or any part of the costs of
the project. Tlms, a special City cloc-.jon with notice will be required.
Iowa Code, Section 384,26 (4) required 60% approval.
ISSUE P: How should community facilities be jointly developed?
The joint development of community facilities with other public and private
facilities offers a way to achieve greater return for the investment. Costs of
structures, site development, and maintenance can be shared with joint develop-
ment resulting in efficient provision of services. The central question regarding
joint development of community facilities is how far joint development is to be
pursued.
Alternative 1: Schools, parks and libraries should jointly develop and use
facilities.
This alternative assumes that only parks, schools and libraries will jointly
develop and use facilities.
Land Use and Social:
1. Will concentrate traffic to and from facilities on fewer streets.
2. Will maximize facility, site and parking lot use.
3. Increased use will be disruptive to surrounding residences if buffering and
lot size are not sufficient.
4. Will be efficient in terms of land use, cost, utilities, and personal time.
S. Some compromise on location will be necessary since locational criteria will
vary.
Economic:
I. Substantial savings in land acquisition costs could he realized since such
things as parking lots could be used in common.
2. Savings could be realized in new construction costs if the schools and library
shared a single facility.
3. Some economics in operation and maintenance would be possible in such areas
as janitorial service and utilities.
Environmental:
1. This will make the hest use of sites environmentally and reduce access roads
to separate facilities.
2. Automobile use will be decreased with decrease in pollution and fuel use.
3. Proximity to neighborhoods will be beneficial psychologically due in part to
increased edge effect.
Legal:
1. Constitutional: Appears to raise no constitutional issue.
2. Code: No code section specifically authorizes such joint development of
facilities. However, such development would appear to be within the City's
home rule power. The Iowa Code provides for some cooperation as to joint use
of facilities presently, while the Municipal Code of Iowa City vests ])road
responsibility in the Parks and Recreation Commission for developing and
integrating programs.]
3. Case Law: Generally, municipal corporations may join with each other, or with
the state, or other political subdivisions thereof in engaging in business
enterprises of :i public nature.'
-
a
0 0
Alternative 2: The City should develop community facilities jointly with other
private uses.
This alternative assumes that conanunity facilities will be jointly developed and
operated with private facilities. This might take the form of providing basket-
ball goals on a church parking lot, to developing a community center at a shopping
center.
Land Use and Social:
Same as Alternative 1, plus there may be conflict between (among) uses without
careful site and program planning. Also, this may require greater compromise
of location.
Economic:
Utilizing existing privately owned facilities such as churches would help to
eliminate the need for new or expanded city -owned facilities to accomodate
increased use from existing and newly planned programs and activities.
Would probably incur planning and administrative costs initially, and, as
programs are developed and implemented, additional administrative overhead
would be incurred.
Additional maintenance casts would probably be incurred as the City assumes
partial responsibility for upkeep of the various facilities.
Environmental:
May reduce automobile traffic further.
Legal:
1. Constitutional: Potential establishment of religion problems may arise if
community facilities are jointly developed with churches. A question might
also arise as to whether public money or property is being appropriated for
local or private purposes unconstitutionally by such joint development.3
2. Code: Iowa Code, Section 343.8 provides, "Ilumic money shall not be appro-
priated, given, or loaned by the corporate authorities of any county or
township, to or in favor of any institution, school, association, or object
which is under ecclesiastical or sectarian management or control."
3. Case Law: It is generally held that a contract whereby a municipal corporation
engages jointly with a private individual or corporation in the construction
of an improvement for joint use is invalid as being a loan of the municipal
credit for private benefit.4 Municipal corporations generally have express
or implied power to construct or acquire buildings for municipal purposes.
While such a building may incidentally be used for other purposes, a municipal
corporation may not erect a building primarily for anything other tPn
municipal purposes. Brooks v. Brooklyn, 146 Iowa 136, 124, NW 868.
Alternative 3: The City should develop multi-purpose sites that can be used for
many different functions (eg., fire, parks, water, schools, community center,
library, etc.)
This alternative assumes that community facilities will be jointly developed and
operated where ever possible.
• -3 •
Land Use and Social:
1. Same as Alternative 2.
Economic:
1. would allow savings in land acquisition costs in addition to the economies
associated with operation and maintenance of a centralized, multi-purpose
facility.
2. Since less land would be required, facilities of this nature consume less
tax producing, developable land.
Environmental:
1. Same as Alternative 1 only more so.
Comment: Environmental impacts, particularly for Alternative 2, are hard to
analyze for unknown locations.
Legal:
1. Constitutional: The question as to whether community facilities are permitted
or excluded in certain districts has important implications for the principle
of equal treatment of various groups of the population.6
2. Code: No code section specifically authorizes the development of such multi-
purpose sites. However, this would appear to be within the City's home rule
power. Of course, extensive cooperation and input from all relevant City
Departments, the Parks and Recreation Commission, The Library Board of Trustees,
and the Iowa City Community School District would be necessary to determine
feasibility.
3. Case Law: It is conventional to allow community facilities such as parks,
libraries and achools in residence districts. The only objection is the same
as the objection to all community facilities; by definition, these are places
of assembly, and they are therefore substantial traffic generators.7
SUMARY TABLE
Land Use Economic Environmental Legal
and Social
Alternative 1 + + + +
Alternative 2 +/- +/- +
Alternative 3 +/- + + +
FOOTNOTES
Legal
1. lown Code, Sections 297.9 and 300.1 permits the board of directors of am'
school district to authorize the use of any schoolhouse and its grounds for
community recreational activities among other things, and to cooperate with
the Parks and Recreation Commission. Under Iowa City Municipal Code, Section
3.34.1 (D), the Parks and Recreation Commission has broad duties and rosponsi-
bilities for the development of park, recreation centers, playgrounds and
cultural activities and is responsible for integrating their programs with
other governmental agencies, including but not limited to the Iowa City
Community School District, the University of Iowa, and Johnson County and
surrounding municipal units. 'Thus, initiative on this alternative should
logically start with the Parks and Recreation Commission and include the
Iowa City Community School District as well as the Iowa City Library Board
of Trustees.
2. 56 AmJur 2d, Section 218, page 278
3. Iowa Constitution, Article 1, Section 3 provides, "The General Assembly 511,111
make no law respecting an establishment of religion, or prohibiting the free
exercise thereof; nor shall any person he compelled to attend any place of
worship, pay tithes, taxes, or other rates for buildings or repairing places
of worship, or the maintenance of any minister or ministry." However, it has
been held that the occasional use of a school house for religious meetings by
permission of the district directors does not convert it into a building for
worship within the meaning of this section. Davis v. Boget, 50 lows (1878).
Iowa Constitution, Article .3, Section 31 prohibits appropriation of public
money or property for local or private purposes, unless allowed by two-thirds
of the General Assembly. Thus, .it has been held that no power exists in ,1
city council to appropriate public moneys to private use without "public
benefit" and that no such power can be conferred upon it by legislative act.
Love v. City of Des Moines, 210 lova 90, 230 N.W. 373 (1930). Yet, Article
3, Section 31 is not to be narrowly construed, and an act cannot be said to
be for a "private purpose" contrary to the constitutional provision that
public moneys shall not be appropriated for private purpose, where some
principle of public policy underlies its passage. Dickinson v. Porter, 240
Iowa 393, 35 N.w.2d 66, appeal dismissed 70 Ct. 88, 338 U.S. 843, !)4 LEd.
1371 (1949). Thus, if the City develops community facilities jointly with
private uses, such site must be used for purposes that will benefit the
public and serve a municipal purpose, and must not primarily promoto some
private end. See also footnote S.
56 AmJur 2d, Section 218, page 278
In Brooks v. Incorporated 'Town of Brooklyn, 146 Iowa 136, 124 NAV. 868, the
Iowa Supreme Court quoted Beach on Public Corporations, vol. 1, 646, as stating
the rule with reference to public buildings. "The validity of appropriations
for the purpose of erecting or repairing public buildings is sometimes con-
tested in the courts on the ground that the contemplated accommodations
exceed the actual needs of the corporation, and are to be rented in part to
private individuals. The distinction drawn in the authorities is this: If the
primary object of a public expenditure is to subserve a public municipal purnos
ture is
tnciaentaiiy serve some puou c purl
to make suitable provision for pros
expending money within the limits o
so involves as in incident an
xponditure is illegal even though it may
IL. It is proper in constructing building
ctive wants. Proceedings in raising and
the corporate powers in these particulars
0
will not be collaterally impeached and held void because in the opinion of a
court and jury, a less sum would have answered the immediate necessities of the
corporation or the money might have been more judiciously and economically
expended.°
b. Williams, in Amorican Planning Law, Section 75.01, page 502 states, "As so
often in planning law, the question as to whother community facilities are
permitted or excluded in certain districts has important implications for the
principle of equal treatment of various groups of the population. Almost all
residential areas need the services furnished by churches, schools, libraries,
parks, and hospitals. The only real exceptimts come in a few very wealthy
areas, where most children go to private schools - but these are statistically
insignificant, and in any event the same question arises on the location of
private schools - and in the case of retirement colonies, with no young people.
The pressure to exclude churches, schools and other community facilities from
some residential areas, inhabited mostly by people who are wealthy or fairly
well-off. If the facilities which they use are excluded from their own resi-
dential districts, those facilities must necessarily locate in other areas;
i.e., primarily in other residential areas occupied by other (and usually less
wealthy) people. The latter residential areas will have to accommodate not
only the facilities necessary to serve their own population, but the facilities
needed to serve the wealthy areas as well. In other words, as a result of this
policy, the people living in the less wealthy areas will have to absorb much
more noise and fumes, and their children will be exposed to much more traffic.
To decide that such facilities may be excluded from the lowest -density resi-
dential areas is therefore to approve the principle of dumping facilities and
their undesirable consequences on the less wealthy groups of the population in
order to favor the rich - and, much more important, of using the mechanism of
government to carry out such dumping and to ensure unequal treatment.
The proper solution to the problem is thus to permit community facilities
in all residential areas - but to impose appropriately stiff requirements on
density, on off-street parking, and on yards and screening, to reduce the
impact of such facilities on nearby residences."
7. Williams, American Planning Law, Section 75.01.
9 0
ISSUE Q: Should the City amend the zoning ordinance to include a provision for
a special zone for all park lands?
Zoning for open space, public and semi-public recreatiun areas is a recent trend
in new zoning ordinances. Currently, public and semi-public open space is allowed
in any zone. With special zoning, a district can be created for public and semi-
public uses.
Alternative 1: The current policy of allowing open space to have any zoning
designation should continue.
This alternative assumes that the new zoning ordinance would be similar to the
existing ordinance in that it would allow public and semi-public uses in any zone.
Land Use and Social:
1. Does not reserve land as open space, but allows it to revert to zoning as
owners wish.
2. Will affect adjoining land values and neighborhood depending on future use
of the open space.
3. Can be misleading to home -buyers purchasing adjoining property.
4. Does not require public -semi-public designation prior to acquisition of
property.
Economic:
1. No significant economic impacts.
Environmental:
1. May permit elimination of open space if area is developed according to its
zoning.
2. Will permit change in use of whole area with consequent loss of open space.
3. Lost open space may not be replaced elsewhere.
4. Environmentally sensitive areas may be destroyed.
S. Buffer zone with large edge effect may be lost.
Legal:
1. Constitutional: Appears to raise no constitutional issue.
2. Codc: The broad grant of power in Iowa Code, Chapter 414, Municipal Zoning
allows council to zone ]and for open space or park land within any zoning
district as long as such regulation is made in accordance with a comprehensive
plan.l
3. Case Law: Indeterminate.
Alternative 2: A special zone should be created for all public and semi-public
uses.
This alternative assumes that the new zoning ordinance would have a public and
semi-public designation. With this technique, major public and semi-public
uses (University of Iowa, schools and large parks) would be zoned as such, with
smaller areas (churches, small parks) treated as conditional or provisional uses
in other zones.
• 2 •
Land Use and Social:
1. Would require a rezoning to change open space (and other public and semi-
public land) to another use.
2. Would require rezoning if land to be used for public use was not designated
as such in the zoning map.
3. Will restrict choice of owner, and will probably be a disadvantage to the
owner as this zoning limits use and value of the property.
Economic:
1. Reduces the development potential of existing privately held, semi-public
open spaces, and thus reduces its value.
2. Would require a revaluation of the land, thereby reducing its tax liability.
Environmental:
1. Will permit permanent preservation of environmentally sensitive areas.
2. Will contribute to the maintenance of diversity and stability of the ecosystem.
3. Will allow buffer zones with resultant reduction of noise and air pollution
and temperature extremes where most needed.
4. Will probably ensure distribution of open space throughout the City, which will
result in psychological benefits and may curtail the need for automobile use
to reach open space areas.
Legal:
1. Constitutional: Appears to raise no constitutional issue.
2. Code: Iowa Code, Chapter 414, Municipal Zoning, grants sufficient power for
the City to create a special zone for all public and semi-public uses.2
3. Case Law: Indeterminate
SUNMARY TABLE
Land Use Economic Environmental Legal
and Social
Alternative 1 0 +
Alternative 2 +
FOOTNOTES
Legal
1. Council has the authority under Iowa Code, Chapter 414, Municipal Zoning, to
regulate and restrict the use of land within the zoning districts it creates.
Tlius, council can provide that land can he used for open space or park land
within any zoning district, as long as such regulation is made in accordance
with a comprehensive plan. Section 414.1 specifically states that the City is
enpowered to regulate and restrict the size of yards, courts and other open
Spaces.
Section 414.3 specifically states that zoning regulations shall be made to
facilitate the adequate provision of transportation, water, sewage, schools,
parks, and other public requirements.
2. Council has the authority under Iowa Code, Chapter 414, to divide the City into
districts for the purpose of promoting the health, safety, morals, or the gen-
eral welfare of the community and to regulate or restrict the height, number
of stories, size of buildings and other structures, the percentage of lot that
may be occupied, the size of yards, courts and other open spaces, the density
of population, and the location and use of buildings, structures, and land
for trade, industry, residence, or other purposes. This broad grant of power
is sufficient to allow the City to create a special zone for all public and
semi-public uses.
As to the conditional uses, the conditions may he listed in the zoning
ordinance, or the authority to impose conditions can be delegated. In case of
the latter, adequate standards to guide administrative discretion must be
provided.
ISSUE S: Meat methods should the City require to protect incompatible land
uses in relatively close proximity?
In many instances, it may be desirable to locate incompatible uses in close
proximity to each other (e.g., student housing within walking distance of the
university campus, commercial areas, and recreation facilities). By control-
ling the side-effects of the more intense uses, the incompatibility of land
uses can be minimized and a quality living environment: provided.
The Land Use Concepts Report has suggested that there are certain land -use
relationships which should be avoided. From past experience, it does not seem
possible to assure that incompatible land uses will be sited far enough apart.
'17ws, the question becomes; should the City require transitions and buffers?
Alternative 1: Let the market take care of itself.
This alternative assumes that no action is necessary on the City's part. it
implies that everyone has the right to use their own property as they wish
(within regulations), and that it is up to each property owner to screen and
buffer their property from undesirable characteristics of other properties.
Land Use and Social:
1. An unbuffered, incompatible land use would be detrimental to neighborhood
quality. It would probably decrease property values and decrease stability.
2. It would be much more difficult for each neighbor to provide buffers against
an incompatible land use than it would be to provide buffers on the site of
the incompatible land use.
3. While the owner of the incompatible use would benefit, neighboring uses would
be very disadvantaged.
Economic:
1. Would encourage the continued presence of these negative side-effects in
established, mixed-use areas since existing market mechanisms provide no
incentive for the source to stop producing them.
2. Values of adjoining properties would continue to suffer as the negative
side-effects diminish the potential uses of those properties.
3. Requires adjoining property owners to assume the cost of reducing or
eliminating the negative side-effects.
4. Reduces the possibility of mixing incompatible land uses in new or rede-
veloped areas since the likelihood of controlling negative side-effects
rests on the good will of the land owner from which the side-effects are
emanating.
Environmental:
1. Will result in excessive noise and air pollution for some property owners.
2. Will probably have an adverse edge effect because of traffic, temperature
extremes, etc.
3. Will cause psychological stress.
4. Lack of a buffer may make it impossible to maintain vegetation (gardens)
on neighboring property.
3 S'7/
E
Legal:
0
1. If this alternative is chosen, limitations on incompatibility still exist
under the common law of nuisances as well as under the zoning ordinance
itself. If council fails to deal with incompatible development through
zoning, persons can still turn to the courts for protection tlu•ough the
application of nuisance law.l
Alternative 2: Allow incompatible land uses to be located in close proximity
(where desirable and/or necessary) if buffers, careful site planning, and
similar considerations are given to development.
This alternative assumes that the City must establish regulations to protect
less intensive land uses from the harmful side-effects of more intensive land
uses. It implies that if a property owner creates harmful side-effects which
may adversely affect neighbors or the community as a whole. The property owner
should be responsible for correcting and controlling the harmful side-effects.
Additionally, it assumes that the City can set standards which are reasonable
and effective.
Land Use and Social:
1. Will improve neighborhood quality and image, probably making the neighbor-
hood and property values more stable.
2. Will cost the owner of the incompatible use.
3. Will benefit the neighborhood and the community as a whole.
Economic:
1. Would force the owner of the land use activity producing the side-effects
to internalize the cost of eliminating or reducing the negative side-effects,
or to locate in an area where it would be unnecessary to utilize these
techniques.
2. Would optimize the land use distribution from an economic efficiency stand-
point since only those activities able and willing to assume the full cost
of locating in a given area would do so.
3. Would require additional staff support and equipment in order to administer
the provisions of such a regulation.
4. Would increase overall building and development costs for those activities
wishing to locate in a mixed use location.
S. Would protect and possibly enhance the value of adjoining properties.
Environmental:
1. Will reduce noise and air pollution.
2. Will create a positive edge effect in part by screening traffic, reducing
temperature extremes, and providing a more attractive view.
3. Will reduce the psychological stress due to a neighboring incompatible use.
4. May provide ecological benefits if buffer is made of trees or other vegetation.
S. Is an environmentally sound proposal.
Legal:
1. ']'his is within the scope of the City's power under Iowa Code, Chapter 414.
0 -3 •
However, certain site plan regulations could be viewed as aesthetic zoning
and invalid if not related to protection of the public health, safety, or
welfare. (See discussion of Stoner McCray in footnote 7 of Issue C.)
Also, public or private nuisance actions are still available at common law
should incompatible uses adversely affect neighbors or the community as a
whole.2
SUNWARI' TABLE
Land Use Rconomic Environmental Legal
and Social
Alternative 1
Alternative 2 + +/- ++
FOOTNOITS
In general, activities which offend aesthetic sensibilities such as inter-
ferences with sight or view are not considered nuisances. Livingston v.
Davis, 243 Iowa 21, 50 N.W. 2d 592 (1951). Regulation of aesthetics and
elimination of "visual pollution" is also questionably valid under the
police power. (See Footnote 7, Issue C.)
In a nuisance action, compensatory damages, measured by the character and
extent of the injury to the plaintiffs' property interest, are always
recoverable. Where no adequate legal remedy exists, an injunction instead
of or in addition to damages can be obtained. An injunction is possible
where the injury is irreparable.
However, the existence of zoning ordinances does affect the common
law of nuisances. When a zoning ordinance authorizes a certain use, that
use cannot, by definition, constitute a nuisance per se, and it is generally
held that the use cannot constitute a public nuisance. Thus, allowing
incompatible uses to be located in close proximity under the zoning ordinance
might limit the availability of a nuisance action. Of course, the necessity
of bringing a nuisance action may be lessened if the requirements as to
buffering and site planning are implemented.
•
C,
ISSUI7 T: How cant densities of residential areas be increased without adversely
affecting existing residents?
It is likely that increased residential densities in formerly low-density areas
will occur in Iowa City due to several factors. Changing family size and life
styles will generate additional demand for compact housing close in to the
university, shopping, recreation, and employment. The energy efficiency of
higher density housing, both direct and indirect efficiency, will encourage
higher densities. Additionally, most redevelopment will likely require increased
densities if it is going to be economically feasible. How lowa City accomodates
increased densities will affect the quality of life for all residents of Iowa
City.
Alternative 1: Maintain existing policies (i.e., impose higher density zoning
onto the (former) lower density area).
This alternative is a continuation of the existing policy.
Land Use and Social:
1. Generates increased traffic through residential neighborhoods.
2. Results in more on -street parking which crowds streets and impairs safety.
3. Apartments are scattered among single-family residences.
4. Disrupts the quality and nature of the predominantly single-family neighbor-
hoods.
5. Can lead to poor up -keep of residences (renter -occupied and those expected
to be sold for multi -family (levelopment), and fluctuating property values
in transition areas.
G. Although more buffering could reduce the effect on neighboring residences,
some aspects of higher densities are incompatible with lower density resi-
dential.
7. Maximizes multi -family development opportunities, but disadvantages residents
of neighboring single-family residences.
Economic:
1. More intensive land use permits lower per-unit land costs and, therefore,
provides lower-cost housing.
2. High density housing developments in formerly low density neighborhoods,
typically makes those neighborhoods less desirable from a single family
standpoint. Unless there is sufficient market demand for more intensive
use throughout the neighborhood, some adjoining property owners will be
faced with a diminished value for their property.
3. Could produce higher maintenance costs for surrounding infrastructure since
existing facilities such as streets were designed to carry traffic generated
by lower density use.
4. More intensive redevelopment of inner-city neighborhoods helps to slow the
comsumption of land at the fringe of the city, thereby making some cost
savings possible in the extension of city services.
Environmental:
1. Will increase traffic in area with resultant increase in air and noise
pollution.
2. Will probably cause psychological stress to single-family residents because
W" i
•
of "crowded" feeling.
3. will reduce open space in neighborhood (less yard area).
4. Yards may be used for extra parking.
5. May result in insufficient open space for local recreation.
G. Adverse edge effect will be at a maximum since high-density residences can
be built smack in the middle of low-density areas. (Adverse edge effect
includes direct noise, traffic, temperature extremes due to loss of open
space and vegetation, absence of general buffering effect of yards.)
Legal:
1. Constitutional: A potential argument might be raised that imposing higher
density zoning onto the former lower -density area is invalid as beyond the
power delegated to the City under Iowa Code, Chapter 414.1
2. Code: The City is granted the power to regulate and restrict the density of
population within the various zoning districts the council creates.-
3. Case Law: Zoning of land for public good is a proper exercise of police
power even though it works some onerous consequences on landowners; but the
power to zone is not unlimited; it must be reasonably exercised in further-
ance of public safety, health, morals and welfare.3 Initially, a strong
presumption of validity accompanies zoning ordinances.4
Alternative 2: Rezone to higher (residential) densities, compact areas which can
be entirely redeveloped over a short -time period.
This alternative would rezone small units for redevelopment instead of the large
areas currently zoned for multi -family development. These areas would be built
out before new areas would be rezoned for multi -family housing.
Land Use and Social:
1. Would concentrate new multi -family construction.
2. Would concentrate traffic generated from multi -family housing on fewer streets.
3. Would put more pressure on existing housing in the rezoned unit to be replaced
by multi -family housing.
4. Would make other neighborhoods more stable.
S. Would restrict redevelopment opportunities and residential choice.
G. Would benefit single-family residents of other neighborhoods.
Economic:
1. Acquisition costs for assembling a comparatively large number of parcels would
be extremely high unless condemnation were used.
2. Could reduce the negative economic impact on lower density neighborhoods by
concentrating the higher density redevelopment in a single arca.
3. Larger scale redevelopments could make reconstruction of public improvements
more economically feasible and thereby reduce long -run maintenance costs.
4. Could help reduce the demand for land at the urban fringe, thus making some
cost savings possible in the extension of City services.
Environmental:
1. Will increase traffic in area with resultant increase in air and noise
pollution.
2. Will reduce open space and vegetation in neighborhood.
3. May result in insufficient open space for local recreation with resulting
psychological stress.
4. Will probably permit adequate parking.
S. Adverse edge effect is considerably reduced (compared to Alternative 1)
due to the more compact development which results in less "edge".
legal:
1. Analysis of Alternative 1 applies.
Alternative 3: Require large-scale, multi. -family complexes in redevelopment
areas (e.g., P.A.D.$).
11iis alternative would require a redeveloper to assemble several lots for redc-
velopment instead of the small lot redevelopment which occurs now. Generally,
quarter block units or block faces would be required to be redeveloped as a unit.
Land Use and Social:
1. Would concentrate multi -family housing.
2. Would concentrate traffic generated by multi -fa roily housing on fewer streets.
3. Would alleviate some on -street parking problems associated with multi -family
housing.
4. Would make other neighborhoods more stable.
S. Would probably require demolition of all existing housing on those lots, which
would be wasteful.
G. Would limit multi -family development opportunities and residential choice.
7. Would probably limit redevelopment opportunities to large developers.
Economic:
1. Would permit assembly of large numbers of small parcels through condemnation
authority, thereby lowering the overall redevelopment costs.
2. Could rejuvenate property values in those redevelopment areas experiencing
relative declines due to owner disinvestment and deterioration in public
infrastructure.
3. Could help reduce the demand for land at the urban fringe, thus making some
cost savings possible in the extension of city services.
Environmental:
1. Will increase traffic, noise, and air pollution.
2. Will probably provide adequate open space.
3. Will probably minimize loss of vegetation in area.
4. With good P.A.D. site development, adverse edge effects could be minimal.
Legal:
1. Constitutional: Appears to raise no constitutional issue.
2. Code: If challenged, the Planned Area Development technique may not be
compatible with the Iowa Municipal Zoning, Chapter 414. For example, a
P.A.D, plan may show variations from the normal requirements of the particular
zone in which the tract of land is located, and this may violate Iowa Code
l 0
Section 414.2 which requires all building restrictions and reguiatioils to be
uniform for each class or kind of building throughout each zoning district.
3. Case Law: Planned Area Development ordinances have been upheld even where not
specially authorized by enabling legislation.5 Also, given the strong pre-
sumption in favor of the validity of zoning ordinances and the court's
reluctance to declare such acts at a city council void when done in pursuance
to a comprehensive plat, the planned Arca Development technique would most
likely be upheld if challenged.
Alternative 4: Scatter higher densities throughout the City.
This alternative assumes that potential for high-density housing would be scattered
throughout the City. Some mechanism which would limit the percentage of multi-
family units in any area of the City would be necessary. This also assumes sonic
mechanism for regulating the location of high density housing (e.g., that there is
access to two major streets).
Land Use and Social:
1. Would generate additional traffic through residential neighborhoods. Although,
given adequate regulation, there would be less traffic than now.
2. Will result in apartment buildings locating among single-family residences,
but at greater intervals than at present.
3. May disrupt the nature and quality of the predominantly single-family neighbor-
hood even with regulation.
4. Will probably result in more on -street parking which crowds streets and impairs
safety.
S. Will provide more opportunity for multi -family development and more selection
for multi -family residents.
Economic:
1. Would negatively impact property values in predominantly single-family neigh-
borhoods unless adequate buffering and screening could be utilized to reduce
side-effects.
2. Could reduce the demand for land at the urban fringe, thereby making some
cost savings possible in the provision of city services.
3. would permit lower cost housing as the more intensive use of land permits
lower per-unit land costs.
Environmental:
1. Will increase traffic, noise, and air pollution.
2. Will probably reduce open space and vegetation in neighborhood.
3. May result in insufficient open space for local recreation and resultant
psychological stress.
4. Adverse edge effects larger than for Alternative 2 and 3, less than for
Alternative 1. Location of high density residences will minimize effects
of increased traffic on surrounding low-density areas.
Legal:
1. Legal Impact: Analysis of Alternative 1 applies.
• 5 .
SUNMARY TABLE
p00TNOITS
Legal
It could be argued that imposing higher density zoning onto a former low-
density area is unconstitutional as being ultra -vires the power delegated to
the City under the Municipal Zoning Chapter. The argument would be based
on Iowa Code Sections 414.1 and 414.3, and would interpret those sections
thusly: The City is empowered to regulate and restrict the density of popu-
lation only for the purpose of promoting the health, safety, morals, or the
general welfare of the community. (414.1) And any regulations must be made
in accordance with the requirements of 414.3 (i.e., designed to lessen con-
jestion in the streets; to prevent the overcrowding of land; to avoid undue
concentration of population.) Thus, it would be argued that imposing higher
density zoning is ultra -vires as it increases population density which is
directly opposite the design of Section 414.3, and does not promote the health,
safety, morals, or the general welfare of the community as required by 414.1.
Of course, such an attack is hypothetical, and the actual outcome of a case
would depend upon the facts of the given case, including the character of the
area and the actual densities involved. No cases were found raising such an
argument.
Iowa Code Section 414.1 grants the City the power to regulate and restrict
the density of population for the purpose of promoting the health, safety,
morals, or the general welfare of the community. Also, Section 414.3 contains
six reasonably specific references to the basis of zoning regulations, and
three of these six references are concerned with density. (Designed to lessen
congestion in the street; to prevent the overcrowding of land; and to avoid
undue concentration of population.) Thus, it is clear that the City may
regulate the density of residential districts as long as such regulations are
reasonable, are in accordance with a comprehensive plan, and are made with
reasonable consideration as to the character of the area of the district,
and with a view to conserving the value of buildings and encouraging the most
appropriate use of land throughout the City.
Business 1'entures, Inc. V. Iowa City, 234 N.W. 376 (1975).
F. H. Velner precision Tools and Dyes, Inc. v. City of Dubuque, 190 N.W. 2d
5. Cheney v. Village 2 at Now (lope, Inc., 429 Pa. 626, 241A.2d 81 (19118).
Land Use
fcononic
Environmental
Legal
and Social
Alternative I
-
/+
+
Alternative 2
+
+/_
/+
+
Alternative 3
+/-
+
+
+
Alternative 4
+/_
+/_
_/+
+
p00TNOITS
Legal
It could be argued that imposing higher density zoning onto a former low-
density area is unconstitutional as being ultra -vires the power delegated to
the City under the Municipal Zoning Chapter. The argument would be based
on Iowa Code Sections 414.1 and 414.3, and would interpret those sections
thusly: The City is empowered to regulate and restrict the density of popu-
lation only for the purpose of promoting the health, safety, morals, or the
general welfare of the community. (414.1) And any regulations must be made
in accordance with the requirements of 414.3 (i.e., designed to lessen con-
jestion in the streets; to prevent the overcrowding of land; to avoid undue
concentration of population.) Thus, it would be argued that imposing higher
density zoning is ultra -vires as it increases population density which is
directly opposite the design of Section 414.3, and does not promote the health,
safety, morals, or the general welfare of the community as required by 414.1.
Of course, such an attack is hypothetical, and the actual outcome of a case
would depend upon the facts of the given case, including the character of the
area and the actual densities involved. No cases were found raising such an
argument.
Iowa Code Section 414.1 grants the City the power to regulate and restrict
the density of population for the purpose of promoting the health, safety,
morals, or the general welfare of the community. Also, Section 414.3 contains
six reasonably specific references to the basis of zoning regulations, and
three of these six references are concerned with density. (Designed to lessen
congestion in the street; to prevent the overcrowding of land; and to avoid
undue concentration of population.) Thus, it is clear that the City may
regulate the density of residential districts as long as such regulations are
reasonable, are in accordance with a comprehensive plan, and are made with
reasonable consideration as to the character of the area of the district,
and with a view to conserving the value of buildings and encouraging the most
appropriate use of land throughout the City.
Business 1'entures, Inc. V. Iowa City, 234 N.W. 376 (1975).
F. H. Velner precision Tools and Dyes, Inc. v. City of Dubuque, 190 N.W. 2d
5. Cheney v. Village 2 at Now (lope, Inc., 429 Pa. 626, 241A.2d 81 (19118).
0 0
ISSUE U: How should the City use topography, soils, water, distance from core
areas, utilities, trafficways and vegetation as locational criteria in
planning and zoning?
The Locational Factors Report has identified several variables which can be
used for land -use planning. The extent to which these factors are used as a
guide to decisions will influence the form and function of Iowa City in the
future. The alternatives below can be used in various combinations, and it is
essential to order them in importance if they are to be applied effectively.
Alternative 1: Maintain steep slopes in open space (public or private).
This alternative assumes that steep slopes (over 15%) would be maintained as
either public or private ownership. Zoning provisions which prohibit development
of slopes in excess of 15% could be enacted, as well as subdivision provisions
that would require dedication of steep slope areas.
Land Use and Social:
1. Would reduce the need for roads of a steep grade which are hazardous in
winter months.
2. Would restrict development opportunities and residential choice.
3. Would decrease the value of this property, and would increase the value
of adjoining property.
Economic:
1. Would remove some marginally developable land from the market, however, due
to the small amount in question, there would not be any significant impact
on prices.
2. Maintaining steep slopes in public ownership would require some additional
maintenance responsibility.
3. Public ownership of steep slopes would eliminate the property tax collected
from them in addition to their contribution to the overall property valuation.
4. For privately held property with slopes over 15%, the development potential
would be eliminated and, therefore, much of its value.
Environmental:
1. Will preserve scarce vegetation unique to steep slopes (upland woods).
2. Will maintain stability of important woodland ecosystem.
3. Will preserve important and scarce habitats.
4. Will prevent erosion of erosion -prone soils.
5. Will provide psychological benefits aesthetically and through relocation.
Legal:
1. Constitutional: Subdivision provisions that would require dedication of
steep slope areas and zoning regulations which would prohibit development of
slopes in excess of 15% may constitute takings for public use without just
compensation, in violation of Iowa Constitution, Article I, Section 18.1
2. Code: The Iowa Code neither specifically authorizes nor forbids mandatory
land dedications. Zoning provisions which would prohibit development of
slopes in excess of 15% must be tied to the protection of the public health,
. 2 •
safety, morals, or the general welfare of the community to be a valid police
power regulation.2
3. Case Law: The Iowa Supreme Court has held regarding powers exercised by
municipalities pursuant to the Municipal Zoning, Chapter 414 that, "Property
cannot be confiscated under the guise of the police power."3 The Iowa Court
also has held that the test of whether a zoning ordinance is arbitrary and
unreasonable is whether the means employed have any real, substantial rela-
tion to public health, comfort, safety and welfare, including maintenance of
propeety values.4
Alternative 2: Evaluate qther used of steep slopes.
This alternative assumes that steep slopes should be protected but that develop-
ment can also occur. It assumes that the Zoning Ordinance would establish a
sliding scale which reduces permitted lot coverage as slope increases (as out-
lined in the Locational Factors Report).
Land Use and Social:
1. Would allow road construction and traffic where "sliding scale" permits.
2. Would utilize design techniques such as P.A.D.s or clustering to make low
coverage development economical and to minimize erosion.
3. Would provide greater opportunities for development and residential choice.
Economic:
1. No significant economic impacts.
Environmental:
1. Will probably result in some loss of scarce vegetation and habitats, but will
preserve some of it.
2. Will probably result in some erosion due to construction of housing and build-
ing of access roads.
3. Development may cause run-off problems with erosion.
4. Will retain aesthetic quality in large part, particularly if "large -lot"
development is mandated.
Legal:
1. Constitutional: Regulation that would allow development to occur but would
reduce permitted lot coverage as slope increases would probably not constitute
a taking and would be constitutional.
2. Code: This type of regulation would appear defensible under Iowa Code, Section
414.1 which empowers the City to regulate and restrict the percentage of lot
that may be occupied for the purpose of promoting the health, safety, morals
or the general welfare of the community.
3. Case Law: City council has a wide discretion in enacting zoning ordinances,
and its actions in setting up zones are backed by a strong presumption of
reasonableness and validity.
Alternative 3: Use development potentials and limitations of the area's soils
and water in land -use planning and zoning.
This alternative assumes that the U.S.D.A. Soil Conservation Service's soil
• -3 •
surveys and flood plain information would be used to limit development in areas
of poor soils or an area prone to flooding. The zoning ordinance would establish
special criteria for these areas so they could be developed safely, economically
and healthfully.
Land Use and Social:
1. Would Iimit development to the extent that special criteria were more restric-
tive%than economical -or legal constraints, and restrictions in areas of
potential development would decrease property value.
2. Would require designation in the zoning map of Iowa City land that is not
developable or developable with limitations.
3. Would restrict choice for development and residential choice somewhat, but
would protect home -buyers from potential hazards.
4. May require additional routing of cars and buses to avoid poor soils areas.
Economic:
1. Would reduce the value of those lands with soil limitations or in the flood
plain.
2. Would increase the pressure for higher intensity uses in areas without
limitations and, thereby, increase their value.
3. Would likely scatter development over a broader area at a lower overall
density which could increase the cost of providing city services.
4. Could increase the overall cost of housing as developers are forced to
spread the cost of infrastructure (streets, sewer, etc.) over a smaller
number of units.
Environmental:
1. Would preserve scarce vegetation and habitats (bottom land woods).
2. Will reduce erosion of unsuitable soils.
3. Will preserve river and stream banks for recreational uses and as aesthetic
benefits.
4. Will prevent possible water pollution resulting from flooding or run-off
directly into streams.
1. Constitutional: Limiting development in areas of poor soils and areas prone
to flooding through zoning that would establish criteria for developing these
areas safely, economically and healthfully would be a constitutional exercise
of the police power and would not constitute a taking.
2. Code: This type of regulation would be defensible under Iowa Code Chapter 414.
3. Case Law: Initially, a strong presumption of validity accompanies zoning ordi-
nances.6 Zoning of land for public good is a proper exercise of police power
even though it works some onerous consequences on landowners; but the power
is not limited; it must be reasonably exercised in furtherance of the public
health, morals, and welfare.?
Alternative 4: Develop population intensities in relationship to distance from
core areas i.e., higher densities close to cores, lower densities farther from
cores).
This alternative assumes that distance from core areas should be the principle
factor in determining permitted residential densities. The land -use plan and
• -4 •
zoning ordinance would indicate high densities near centers with increasing
densities as distance from core areas increases. (Implies a "multi -core"
development pattern).
Land Use and Social:
1. Traffic to and from high intensity areas would be concentrated on relatively
few primary and secondary arterials.
2. Would%be reasonably efficient for transportation purposes.
3. Would result in compact development (compact neighborhoods, etc.), so would
be reasonably efficient in terms of provision of utilities.
4. Nodes and surrounding areas would have to be designated in the comprehensive
plan and zoning map.
Economic:
1. The existing distribution of market value for land would be reinforced, that
is, land closest to core areas would, in general, be more valuable and, hence,
usually subject to higher density development than land further away from core
areas.
2. Would permit a more intense redevelopment of older, single-family neighbor-
hoods and possibly reduce the pressure for land conversion at the fringe of
town. Could provide cost savings in the provision of city sewers.
Environmental:
1. Will minimize traffic and, therefore, noise and air pollution and fuel use
assuming core development.
2. May destroy scarce vegetation, habitats, or prime agricultural land.
3. Will result in large area of high density population with little open space
and vegetation and, therefore, greater temperature extremes, noise, and air
pollution.
4. Will cause psychological stress due to large areas of high density.
S. As for core development, extent of adverse edge effect is at a minimum since
the total perimeter is as small as possible.
Legal:
1. Constitutional: Appears to raise no constitutional issue.
2. Code: Restricting and regulating population density in the various zoning
districts is within the power granted the City under Iowa Code, Chapter 414.5
3. Case Law: Indeterminate.
Alternative 5: Locate new development in areas which can be served by logical
and efficient extensions of existing utility services.
This alternative assumes a watershed planning concept. Urban growth form would
be primarily dictated by the shape of watersheds, rather than roadways and other
factors. (Implies a "natural" development pattern.)
Land Use and Social:
1. Would limit road construction and other development to watersheds.
5 0
2. Would be efficient for provision of public utilities and facilities.
3. Would restrict development opportunities to watersheds.
Economic:
1. Would reduce the amount and type of developable land and, therefore, increase
overall land prices and shift some development to other communities and to
rural areas.
2. Would shift property.values by increasing the value of those within the plan-
ning unit and decreasing those outside it.
3. Would permit some cost savings in the extension of capital facilities such
as sewer and water lines and would also permit some economies in operating
and maintenance overhead.
Environmental:
1. Will result in destruction of some prime agricultural land (Snyder Creed
watershed, mainly).
2. May result in destruction of some scarce habitats and environmentally sensi-
tive areas (Northern Ralston Creek watershed).
3. Will permit "natural corridor" development (see Issue D, Alternative 2).
4. Will result in some increased automobile use and, therefore, increased fuel
use, noise, and air pollution.
Legal:
1. Phased growth plans have been upheld where a community is limiting development
in accordance with its ability to provide essential city services rather than
merely seeking to prevent all further development.9 Thus, it appears to be
permissible to limit development according to a city's plan to provide essen-
tial services by logical and efficient extensions of existing utility services
by watershed.
Alternative 6: Use trafficway service corridors as positive locational criteria
for high intensity land uses.
This alternative assumes that arterial streets should be used as positive locational
factors for high intensity uses to maximize the benefit of those facilities and to
minimize the adverse effect of arterial streets upon less intense land uses.
(Implies a "multi -core" or "sprawl" development pattern).
Land Use and Social:
1. The majority of traffic would be concentrated on arterial streets.
2. Would require additional travel.
3. Would not disrupt residential neighborhoods.
4. Could be inefficient in terms of utility and facility provision.
S. Traffic would have a lesser impact on high-intensity uses which would serve
as a buffer to lower intensity uses.
6. Would provide extensive opportunities for development.
Economic:
1. Would reinforce major arterials as desirable development locations for
• 6 •
commercial and high density residential uses and, therefore, increase property
values along those corridors.
2. Would decrease, with distance, the desirability and value of land further away
from the service corridors.
3. Would provide the opportunity to realize cost savings in infrastructure main-
tenance and operation since it would require intensive users of those facil-
ities to locate where the facilities can be most efficiently and effectively
provided and maintained.
Environmental:
1. Will result in destruction of some scarce and diverse habitats and prime
agricultural land. (See Issue D, Alternative 1.)
2. Will have large,.adverse edge effect along arterial streets due to non -
compact nature of high intensity development.
3. Will have psychological benefits due to decreased adverse edge effect on
some residential areas.
Legal:
1. The City has the power to zone and regulate and restrict the use of land
within the districts that council creates. Thus, arterial streets could be
used as a locational factor for high intensity uses, subject to the limi-
tations of Iowa Code, Chapter 414 (i.e., made in accordance with a compre-
hensive plan and designed to promote the health and general welfare; uniform
regulations and restrictions.). Such an approach would appear constitutional
and well within the bounds of zoning case law.
Alternative 7: Require site plans which preserve significant urban vegetation
wherever possible.
This alternative assumes that additional regulation beyond the tree ordinance
is needed to protect significant natural vegetation on private property. These
would likely require extra measures to protect large trees and unique environ-
ments.
Land Use and Social:
1. Would improve neighborhood quality, especially in new neighborhoods where
development often destroys much of the vegetation.
2. Would serve as buffering within the neighborhood.
3. May not be efficient in terms of land use, and would probably require some
additional expense and consideration in developing.
4. Property owners and developers may be disadvantaged by this alternative,
but the community as a whole will benefit.
Economic:
1. Would increase development costs by requiring additional engineering studies
as well as the time and added delay.
2. Would increase operating costs as additional staff time would be required to
process the site plans.
Environmental:
1. Will preserve some unique vegetation and habitats.
-7-
2. Will preserve some environmentally sensitive areas.
3. Will help maintain stability and diversity of ecosystems.
4. Will decrease adverse edge effects of development.
S. Will have psychological benefits aesthetically and through buffer effects.
6. Will not preserve prime agricultural land, however.
Legal:
1. Constitutional: If such regulations are provided under the zoning ordinance,
they may move beyond the scope of the police power and constitute a taking for
which there would have, to be compensation. Requiring private property owners
to preserve trees on their property may not be sufficiently related to pro-
tecting the health, safety, and welfare of the community, but may instead be
restricting private ownership of private property for the public benefit which
requires compensation under the proper circumstances.
2. Code: Iowa Code, Section 409.14 contains a provision that approval of a plot
Th—all be conditioned upon the ordinances and statutes relating to plots within
the city, that streets, alleys, boulevards, parks and public places shall con-
form to the general plan and plot for the city; and that the city council may
make any other reasonable requirements in regard to installation of public
utilities or other improvements as the council may deem requisite for the
protection of the public interest. The question thus becomes whether the pro-
posed site plan regulations are reasonable and whether they are requisite for
the protection of the public interest.
3. Case Law: Indeterminate.
Alternative 8: Develop a set of criteria to evaluate the City's critical environ-
mental areas.
This alternative assumes that critical environmental areas would be identified
in the land -use plan. Regulation which would require environment impact state-
ments for the development of these areas could be enacted so that ample consider-
ation of the merit of development vs. protection could be evaluated.
Land Use and Social:
1. May restrict development somewhat, but
2. Would require identification of those
3. Would disadvantage the property owner
of an E.I.S. and by possible limit on
community as a whole.
Economic:
maintains potential for development.
areas in the land -use plan.
or developer by requiring preparation
use of property, but would benefit the
Would increase the overall cost of development.
Depending on the extent and detail of the required E.I.S., this alternative
cuuld make some small scale developments economically impractical.
Environmental:
1. Will preserve unique vegetation and habitats.
2. Will preserve prime agricultural land in most cases.
3. Will permit preservation of river banks.
4. Environmentally a very sound policy.
• 8-
0
Legal:
1. This may be within the City's power, but ideally, environmental impact
assessment procedures should be approached at the state rather than at the
local level due to staffing and funding problems, Plus the fact that areas
of environmental concern extend beyond the City's jurisdiction.10
FOOTNOTES
Legal
1. This is a difficult determination to predict. Perhaps the most often used
test, however, is one which states that a regulation is a taking if it is
designed to benefit the public rather than to prevent harm.
The issue of mandatory dedication is also discussed in Footnote 7 of
Issue J. However, that discussion is in regard to dedication of land for
parks rather than a dedication of steep slope areas. Since the Iowa Code
neither specifically authorizes nor forbids mandatory land dedications, and
there have been no appellate cases on point in Iowa, there is no definitive
answer as to whether dedications will be upheld. However, dedication of
park land is arguably within the scope of Iowa Code, Chapter 409 as a con-
dition to plot approval and recreational areas is clearly related to the
public health, safety and welfare. Dedication of steep slopes is not clearly
within the scope of Chapter 409, and the relationship of steep -slope preser-
vation to the public health, safety and welfare is less clear than for park
land. Thus, requiring dedication of steep slopes is even more questionable
than mandatory park dedication. Such a requirement easily could be construed
as a taking as it is designed to benefit the public rather than being necessary
to guard the public welfare. At a minimum, the standards suggested in Footnote
SUMMARY TABLE
Land Use
Economic
Environmental
Legal
and Social
Alternative
1
+/-
+/-
*+
,
Alternative
2
+
+
Alternative
3
+/-
-
Alternative
4
+
+
Alternative
5
+
Alternative
6
Alternative
7
+
"
++
0
Alternative
8
+/-
"
FOOTNOTES
Legal
1. This is a difficult determination to predict. Perhaps the most often used
test, however, is one which states that a regulation is a taking if it is
designed to benefit the public rather than to prevent harm.
The issue of mandatory dedication is also discussed in Footnote 7 of
Issue J. However, that discussion is in regard to dedication of land for
parks rather than a dedication of steep slope areas. Since the Iowa Code
neither specifically authorizes nor forbids mandatory land dedications, and
there have been no appellate cases on point in Iowa, there is no definitive
answer as to whether dedications will be upheld. However, dedication of
park land is arguably within the scope of Iowa Code, Chapter 409 as a con-
dition to plot approval and recreational areas is clearly related to the
public health, safety and welfare. Dedication of steep slopes is not clearly
within the scope of Chapter 409, and the relationship of steep -slope preser-
vation to the public health, safety and welfare is less clear than for park
land. Thus, requiring dedication of steep slopes is even more questionable
than mandatory park dedication. Such a requirement easily could be construed
as a taking as it is designed to benefit the public rather than being necessary
to guard the public welfare. At a minimum, the standards suggested in Footnote
9 0
7 of Issue J should be followed to the extent possible in regard to steep
slopes if dedication were to be required.
Zoning regulations which would prohibit development of slopes in excess
of 15% may also be benefiting the public rather than protecting the public
health, safety, and welfare. However, given the strong presumption of valid-
ity accorded zoning enactments, would appear to stand a greater chance of
being upheld than a requirement of dedication if the relation to the public
welfare can be clearly documented.
2. Iowa `Code, Section 414.1.
3. Keller v. Council Bluffs, 66 N.W. 2d 113, 117 (1954).
4. Plaza Recreational Center V. Sioux City, 253 Iowa 246, 111 N.W. 2d 758 (1962).
S. Hermann V. City of Des Moines, 250 Iowa 1281, 97 N.W. 2d 456 (1971).
6. F. H. Velner Precision Tools 4 Dyes, Inc. v. City of Dubuque, 190 N.W. 2d
7.
S.
10.
Id.
Since zoning authorizes a municipality to restrict the percentage of lot
that may be occupied, the size of yards, the density of population, and the
location of buildings, and since zoning is to promote the health and general
welfare, provide adequate light and air, prevent the overcrowding of land,
and avoid undue concentration of population, there are several bases on which
zoning can rely to lower densities.
Golden v. Planning Board of Town of Ramapo, 30 NY 2d 359, 334, NY2 2d 138,
285 N.W. 2d 291 (1972).
Regulations by the City requiring environmental impact statements for devel-
opments in critical environmental areas identified in the land -use plan would
be unprecedented in Iowa. Authority to enact such a requirement, if it exists
at all, would have to be found under the City's home -rule powers. Iowa Code,
Section 364.1, Iowa Constitution.
No examples of a municipality requiring environmental impacts statements
were found. However, many states have adopted procedures analogous to the
National Environmental Policy Act of 1969 (NEPA), which requires an environ-
mental impact statement to be prepared in advance of major Federal actions
which significantly affect the quality of the human environment. Encouraged
by NEPA's accomplishments, some 15 States have now adopted such procedures,
and at least 20 other States have such requirements under consideration.
California's system is the oldest and most extensive of these State programs.
The California Environmental Quality Act (CEQA) requires environmental impact
reports to be prepared on a wide range of public and private projects licensed
by State agencies, counties, cities, and other local governments.
The recommendation section of The California Environmental Quality Act,
a report by Thaddeus C. Trzyna and Arthur IV. Jokela would seem to suggest
that environmental impact assessment procedures should be approached at the
State rather than at the local level. Thus, it is recommended that a single,
high-level agency should be given clear, legal authority to issue detailed
guidelines for implementation of the State law (with a deadline for issuing
them) and to review and enforce local and State agency procedures, and that
this agency should be given adequate funding and staffing. Such funding and
staffing does not exist at the local level, and areas of environmental concern
go well beyond municipal boundaries. Thus, a state-wide approach would seem
more logical.
L
ISSUE V: What policy should the City adopt towards the existence of land uses
with obsolete locations (i.e., land uses that exist within the community,
that threaten the health, safety, and welfare of,residents, which create
unnecessary traffic congestion or similar problems by virtue of their
location).
As a City changes over long periods of time, some sites which were appropriately
located and properly sized for their times become obsolete and sometimes blighting
influencds to their neighborhood. In some instances, the problems are minor, such
as an abandoned gas station in a commercial area, but in other instances, such as
residential areas which become isolated by commercial development from other resi-
dential areas, can deteriorate badly. The choice then becomes how well the City
tries to avoid potential problems and correct problems that exist or will inevitably
occur.
Alternative 1: Let market take care of itself (do nothing).
This alternative assumes that the private market will correct these problems and
re -use sites as it becomes economically feasible.
Land Use and Social:
1. Encourages the continuation of obsolete sites.
2. Non -conforming uses probably decrease property values of surrounding property.
3. Surrounding uses and the community as a whole are disadvantaged by this
alternative.
4. Occupying an obsolete site can be unhealthy and/or unsafe.
Economic:
1. Unless there is some economic or other incentive to move to another location,
the user of the obsolete site would continue to occupy it until it becomes an
economic burden.
2. As long as the obsolete site continues to be occupied by an incompatible land
use, adjacent property would continue to suffer the negative side-effects
produced by the obsolete site, which would be reflected in diminished property
values.
3. Generally, a less than optimal use for a given site produces less than optimal
property tax valuation and, consequently, lower property tax revenues.
Environmental:
1. Adverse edge effects due to inappropriate or obsolete uses will probably con-
tinue (traffic, lack of open space and vegetation).
2. Air and noise pollution may be considerable.
3. There will be psychological stress due to adverse conditions.
Legal:
This alternative would have no adverse legal impact.
Alternative 2: Require buffers, such as screening, around the obsolete site.
This alternative assumes that if the incompatible aspects of uses are screened
from each other, the problems will be minimized. This would require the new
387
zoning ordinance to establish standards for buffering between incompatible land
uses.
Land Use and Social:
1. Will improve neighborhood quality and image.
2. Will cost the owner of the incompatible use for buffering
3. Will benefit the adjoining property owners, and the community as a whole, and
could penefit the owner of the incompatible use as well.
Economic:
1. Could provide the incentive for the obsolete site user to move to a new loca-
tion if the cost of providing the buffering exceeds the economic value of
remaining in the obsolete location.
2. Would diminish the adverse impact on adjoining property values.
3. The increased property values resulting from the buffering would yield higher
tax revenues.
Environmental:
1. Would probably reduce adverse edge effect due to traffic and noise.
2. If screening is "living", air and noise pollution and adverse temperature
effects will be reduced.
3. Psychological stress due to adjacent inappropriate use will be somewhat reduced.
Legal:
1. Constitutional: Appears to raise no unconstitutional issue as long as the
regulations are reasonable and uniform.
2. Code: The existing Municipal Zoning ordinance contains performance standards
which require screening in CB, CBS, M1, M2, IP and ORP zones on lots adjoining
residential development under certain conditions. Buffering and screening
that goes beyond this would most likely be upheld under Iowa Code, Chapter
414.1
3. Case Law: If these land uses do, in fact, threaten the health, safety and
welfare of residents and create unnecessary traffic congestion, the City can
regulate and restrict the use in these areas to alleviate the problem instead
of merely requiring buffers such as screening. Under the police power, cities
have the authority to both define and suppress nuisances.
2
Alternative 3: Relocate the use to a suitable site.
This alternative assumes that the City would purchase an obsolete site, relocate
the tenant to a suitable location, and assemble sites for appropriate re -use.
Land Use and Social:
1. Would improve the quality of the neighborhood.
2. Would positively affect property values of surrounding land uses.
3. Would disadvantage the incompatible use by forcing it out of its location.
Economic:
1. Would require major expenditures to purchase the obsolete site and clear it,
0 -3-
•
as well as providing relocation assistance.
Redevelopment of the obsolete site would generally provide increased property
valuation, not only for the site, but also for surrounding sites.
Some costs could be recovered through the selling and/or redevelopment of the
obsolete site.
Environmental:
1. Will eliminate adverse edge effects.
2. Will eliminate noise and air pollution due to inappropriate use.
3. Will eliminate psychological stress.
Legal:
1. Constitutional: The Iowa Constitution limits the taking of private property
by eminent domain to a taking for a "public use". The "public use" that is
basic to all condemnation proceedings shall be, in Iowa, determined by the
legislature, and the courts will not interfere with the designation by the
legislature unless there appears a clear, plain and palpable case of trans-
gression of the constitutional requirement of public use, or there manifestly
appears to be no tendency to advance and promote the public use. The Court,
in this manner, gives the legislative determination the benefit of the same
presumption which exists when the constitutionality of a statute is challenged.3
2. Code: The right to take private property for public use is conferred upon
cities for public purposes which are reasonable and necessary as an incident to
the powers and duties conferred upon cities.4 Cities also may condemn real
property in connection with an urban renewal project under Chapter 403.5
Finally, cities may acquire real property by eminent domain under Iowa Code,
Chapter 403A, Low Rent Housing Law.6
3. Case Law: Judicial reaction to condemnation for private beneficiaries in
contexts other than urban renewal has been mixed.?
Alternative 4: Amortize obsolete uses.
This alternative assumes that designated obsolete or incompatible uses would be
amortized and abandoned according to a >chedule adopted by Council.
Land Use and Social:
Would eventually improve the quality of the neighborhood and the community.
Would eventually increase the value of neighboring property.
Would lead to deterioration of properties (which would have increasingly
worse neighborhood impacts) until abandonment.
Economic:
1. During the amortization period, adjacent property would continue to suffer the
negative side-effects of the obsolete site which would be reflected in dimin-
ished property values until the site was abandoned and cleared.
2. Unless an adaptive re -use of the building were possible, the value of the
obsolete site would be diminished to the value of the land after demolition
and clearance.
3. Does not require significant intervention on the part of the City and, hence,
some cost savings are possible.
.-4-
Environmental:
4
Environmental:
Environmentally same as Alternative 3, except that effects.will be more gradual.
Legal:
Though as a result of Stoner McCray System v. City of Des Moines, 247 Iowa 1313, 78
N.W. 2d 843 (1956), amortization theory was thought to be unacceptable in Iowa,
more recent cases indicate that amortization schemes are constitutionally valid if
a reasonable amount of time has been given the owner.8
Alternative 5:
Choose the most appropriate alternative (above) for the individual case.
This alternative assumes that some combination of the above should be optimal
and that the Council should select the appropriate methods on a case-by-case basis.
Land Use and Social:
Would not ensure equitable solution as it would be entirely subjective.
Economic:
Depending on method chosen, Alternatives 1, 2, or 3 would apply.
Environmental:
Depending on method chosen, Alternatives 1, 2, or 3 would apply.
Legal:
See individual analyses for Alternative 1-3.
SUMMARY TABLE
Land Use
Economic
Environmental
Legal
and Social
Alternative
1 -
-
-
+
Alternative
2 +
+
+
+
Alternative
3 +
+/-
+
+
Alternative
4 +/-
-/+
+
+
Alternative
5 0
0
0
0
• 5 •
FOOTNOTES
Legal
1. Such regulations must be made with reasonable consideration as to the character
of the area, the peculiar suitability of the area for particular uses, and with
a view to conserving the value of buildings and encouraging the most appropriate
use of land. If such measures are viewed as aesthetic zoning, the justification
as a m6asure to preserve property values could be important.
2. People v. Johnson, 129 Cal.App. 2d 1, 277 P. 2d 45, 49 (1954).
3. Abolt v. City of Fort Madison, 252 Iowa 626, 108 N.W. 2d 263 (1961).
4. Iowa Code, Section 471.4 (6) (1977).
S. Iowa Code, Section 403.7 (1977).
6. Iowa Code, Section 403A.3 (1977).
7. Courts find parking projects to be a public use since they relieve congestion
and reduce traffic hazards. Larsen v. City and County at San Francisco, 152
Cal.App. 2d 355, 313 p2d 954 (1957). However, the public character of the use
is considered removed when the primary objective is private gain rather than
public need. City and County at San Francisco v. Ross and Larsen v. City and
County of San Francisco, supra; Opinion of the Justices, 341 Mass. 738, 167
N.E. 2d 745 (1960). That impermissible objective may be evidenced by reten-
tion of too little control over rates to be charged and rules of operation,
the existence of too much floor area not associated with parking operations,
or the fact that the contract for building the garage and the lease have speci-
fications peculiar to the needs of a particular bidder.
In Hogue v. Port of Seattle, 54 Wash. 2d 799, 341 P2d 1 (1963), the Court
virtually accepted the higher and better use test rejected in Hogue. The Court
upheld the constitutionality of condemnation for a "World Trade Center" to
centralize New York City's foreign trade facilities. The Court found facilita-
tion of the flow of commerce and centralization of all activity incidental
thereto to be a public purpose supporting the condemnation of property for any
activity functionally related to that purpose, including the use of portions
of structures otherwise devoted to project purposes for the production of
incidental revenue for the expenses of the project.
In Board of Superythat
v. Miller, 170 N.W. 2d 358 )Iowa, 1969), the Iowa
Supreme Court held at enforcement of an ordinance requiring termination of
an automobile wrecking business, which was a non -conforming use, within five
years of the enactment of the ordinance would not constitute a denial of due
process as to a property owner who made no showing as to business investments,
value of improvements on land, or the extent of hardship in complying with the
ordinance. The Iowa Court stated at Page 362 of 170 N.W.2d; "But as heretofore
disclosed, recent judicial decisions reveal the pronounced trend is toward
elimination of nonconformities by the amortization process. And the test most
commonly employed by courts in determining reasonableness of the liquidation
period is based upon a balancing of public good against private loss. This
unavoidably necessitates an examination of the factual situation presented in
each case. Keller v. City of Council Bluffs, 246 Iowa 202, 208, 66 N.W.2d 113,
51 A.L.R. 2d 251."
0 0
ISSUE W: Now should new, multifamily housing be provided?
Providing new sites for multifamily housing is an important decision, not only for
the obvious impact upon neighborhoods, but also for an efficient arrangement of
land uses. Additionally, the decisions made regarding this issue will have an
impact on the housing market and how many Iowa City residents will lead their daily
lives.
Alternative 1: Scattered throughout City in small (3 story) complexes.
This alternative assumes that new, multifamily housing would be scattered through-
out the City with some provision to prevent a concentration occuring in any given
area. Refer to Issue T, Alternative 4 - same analysis applies.
Legal:
Whichever alternative is chosen, the City should have sufficient power under Iowa
Code, Chapter 414, Municipal Zoning, to locate new, multifamily housing in the
manner it determines is in the best interests of the community. Of course, such
regulation must be pursuant to a comprehensive plan and be uniform for each class
or kind of buildings throughout each district.
l
Alternative 2: Concentrated in the CBD in low-rise buildings.
This alternative assumes that most new multifamily housing would be built near
the central area in low-rise buildings. This area is generally bounded by Brown,
Governor and Kirkwood.
Land Use and Social:
1. Will increase traffic and on -street parking on residential streets which will
impair safety.
2. Shopping and public facilities will be accessible to most of this area by
bicycle or by foot.
3. The single-family nature of the near northside will be severely disrupted.
4. Values of single-family housing in this neighborhood will decline; the value
of the lots will increase when purchased for multi -family construction.
S. This will be a logical extension of land use as densities should be higher
near the core to achieve efficiency in energy consumption, personal time, and
utility and service provision.
6. Will provide a buffer between commercial and low-density residential.
7. Will be a disadvantage to residents and owners of single-family housing in
the northside neighborhood.
Economic:
1. Would accelerate the deterioration of central city neighborhoods as the re-
maining home owners continue to disinvest in their structures in anticipation
of "selling out" for higher density housing.
2. As the negative side-effects of multi -family housing continue to increase,
fewer families would be willing to locate in central Iowa City neighborhoods,
making centrally located schools obsolete.
3. Maintenance costs for public infrastructure (streets, alleys, etc.) would
increase as the population and traffic which they would serve would be in
3 a 7
• 2 •
excess of their original design capacity.
4. Would increase the supply of lower cost housing.
5. Could help to reduce the pressure for expansion at the City's fringe, which
could provide the opportunity for cost savings in the provision of City
services.
Environmental:
1. There `will be some loss of open space (yards).
2. There will be some increase in temperature extremes and effective pollution
due to loss of vegetation in yards.
3. There may be some increase in psychological stress due to higher densities,
but this"will probably be offset by the convenience of location.
4. There will probably not be an increase in traffic (and therefore air and noise
pollution and fuel consumption) because more residents will be within walking
or bicycling distance of their places of employment and commercial areas.
Legal:
See Alternative 1.
Alternative 3: Concentrated in the CRD in 4-7 story buildings.
This alternative assumes that most new, multifamily housing would be built near
the central area in four to seven story buildings. This area is roughly bounded
by Davenport, Governor and Bowery/Prentiss.
Land Use and Social:
1. Will confine traffic generated by the multi -family housing to a smaller area
focused on the CBD.
2. Will decrease the need for automobile use as facilities and services will be
accessible by bicycle or on foot.
3. Will preserve the nature of the existing neighborhood north of Provision,
personal
4. Will be efficient in terms of energy consumption, utility provision, p
time, and land use.
5. Will serve as a buffer between the CBD and low-density residential.
6. Land values in this area will increase in anticipation of greater returns per
square foot.
7. Will be a disadvantage to residents and/or owners of single-family housing in
this area and may disadvantage owners of property adjacent to this area.
Economic:
1. See alternative 2.
2. Permitting taller buildings could reduce the need for as many buildings and
would then concentrate in fewer areas the negative economic impacts of multi-
family housing.
3. liousing costs in high-rise buildings are generally more expensive since savings
in land acquisition costs are not sufficient to compensate for the higher costs
of vertical construction.
Environmental:
1. There will be some loss of open space (yards).
• -3 •
2. There will be an increase in temperature extremes due to large buildings and
loss of vegetation.
3. There may be some increase in psychological stress due to "crowding" effect.
4. Energy conservation will increase (and traffic may decrease) due to proximity
to CBD and the university and compactness of the building.
5. Adverse edge effect will be reduced due to the compact area of high density
dwellings.
Legal: N
Alternative 3:
See Alternative 1.
Alternative 4: In areas of mixed use (e.g., above retail buildings).
This alternative assumes that most new multifamily housing would be built in
areas of mixed use. Apartments would be located adjacent to commercial uses or
above first floor commercial uses.
Land Use and Social:
1. Will probably reduce the need for automobile use and can share parking area.
2. Will' probably be very accessible (within walking distance) to shopping facil-
ities.
3. Will not affect other residential areas, so will preserve their quality.
4. Will increase the need for public open space and recreation areas.
S. Will increase commercial land value.
6. Will require quality buffering to protect residents against negative impacts
of commercial use.
7. Will be efficient in terms of utility provision, energy consumption, and
personal time.
8. Will restrict choice for those seeking multi -family housing.
Economic:
1. In commercial areas such as the CBD, multifamily housing strengthens the
economic vitality of the area by providing a market for excess space and,
also, a market for goods and services (e.g., grocery store) to serve the
residents.
2. The strain on public infrastructure is comparatively less severe in commercial
areas since infrastructure there is usually designed for larger volumes of
traffic, etc.
3. Would remove some of the strain placed upon older neighborhoods to accommodate
increasing volumes of high density housing, which will in turn contribute to
their long-term vitality.
Environmental:
1. There will probably be little loss of open space.
2. There will probably be little increase of the adverse edge effect already
produced by commercial areas.
3. There will be increased psychological stress due to traffic, glare, and
pollution generated by commercial areas.
• -4 •
4. Overall traffic in the area will probably be reduced since more people are
within walking distance of the commercial areas.
Legal:
See Alternative 1.
Alternative 5: Provide opportunity for all the above.
No separate analysis.
FOOTNOTES
Legal
1. Williams, American Land Planning Law, Section 53.09, page 374, provides;
"As an example of the use of general planning criteria, a recent case
from Maryland (Zoning Board of Howard County v. Kanode, 258 Md. 586, 267 A2d
138 (1970) involved an unsuccessful challenge to a refusal to rezone for
apartments, and the planning board's findings included the following:
The General Plan for Howard County proposed nine separate
apartment areas totaling over 800 acres to be used for apart-
ment development. These planned apartment sections were
designed in clusters near shopping and commercial centers
where transportation facilities and other public services are
or will be provided. The subject property is some distance
from commercial services.
The findings also noted that other areas which were zoned for
apartment use (with a capacity of some 1400 possible dwelling
units) had not been developed. Accordingly, the planning board
concluded that such rezoning would be inconsistent with both the
adopted General Plan and the policy of the zoning map; the local
zoning board agreed, as did the courts. (emphasis added).
SU*iARY TABLE
Land Use
Economic
Environmental
Legal
and Social
Alternative
1
Alternative
2 +/_
-/+
+
Alternative
3 +
-/+
+
Alternative
4 +
+
+
FOOTNOTES
Legal
1. Williams, American Land Planning Law, Section 53.09, page 374, provides;
"As an example of the use of general planning criteria, a recent case
from Maryland (Zoning Board of Howard County v. Kanode, 258 Md. 586, 267 A2d
138 (1970) involved an unsuccessful challenge to a refusal to rezone for
apartments, and the planning board's findings included the following:
The General Plan for Howard County proposed nine separate
apartment areas totaling over 800 acres to be used for apart-
ment development. These planned apartment sections were
designed in clusters near shopping and commercial centers
where transportation facilities and other public services are
or will be provided. The subject property is some distance
from commercial services.
The findings also noted that other areas which were zoned for
apartment use (with a capacity of some 1400 possible dwelling
units) had not been developed. Accordingly, the planning board
concluded that such rezoning would be inconsistent with both the
adopted General Plan and the policy of the zoning map; the local
zoning board agreed, as did the courts. (emphasis added).
ISSUE X: What should the City do to encourage provision of lower-cost housing?
The need to provide for ways in which housing can be built more economically is
essential. The rapid increase in housing prices has priced many families out of
the home -ownership market.
Alternative 1: Reduce lot requirements. (General Survey -- 36.60 of respondents
would be satisfied with smaller yard if it lowered housing costs.)
This alternative assumes that by lowering land area per unit dwelling, the over-
all cost of dwellings can be lowered.
Land Use and Social:
1. Will increase density in specified areas without a transition to multi -family.
2. Will be more efficient in utility and service provision than lower -density.
3. Neighborhood quality will depend on the quality of development (see comment).
4. Walls, fencing, vegetation and/or orientation can provide privacy to residents.
S. Will be a more efficient use of land.
6. Will provide increased personal choice for housing and lifestyle.
7. Decreased size will lower the cost of the lot considerably.
Economic:
1. Lot costs currently comprise 15 to 20% of the total housing package; by
reducing lot size, some savings could be realized for single-family homes.
2. Smaller lots would make it economically feasible to build smaller and there-
fore lower cost housing.
3. Would permit some savings in the maintenance of city -owned infrastructure
since more compact housing developments require less infrastructure (e.g.,
streets, sidewalks) in terms of lineal feet.
Environmental:
1. This will reduce open space and vegetation (compared to current sizes for
single family lots) in the immediate area. Presumably, overall open space
in the area would not be reduced if some form of P.A.D. is required.
2. There will be a conservation of energy due to shorter roads (less distance
for garbage trucks, etc., to travel) shorter sewer, electric and water lines.
3. Some increased psychological stress may result due to the closer proximity
of neighbors and increased noise from people and automobiles.
Legal:
1. Constitutional: Appears to raise no constitutional issue.
2. Code: Under Iowa Code, Section 414.1, the City is empowered to regulate and
Te—strict the percentage of lot that may be occupied and the size of yards,
courts and other open spaces for the purpose of promoting the health, safety,
morals, or the general welfare of the community.
3. Case Law: A study of the economic effects of public -policy requirements
on the cost of housing concludes that the effect of large -lot zoning on
housing cost is not as simple as one might imagine.l
Alternative 2: Eliminate side yard requirements. (General Survey respondents
indicated favorable attitudes toward townhouses, garden homes.)
-2-
4
This alternative assumes that by lowering land area per dwelling unit, the over-
all cost of dwellings can be lowered.
Land Use and Social:
Same as Alternative 1. Additional noise insulation and design criteria will be
needed to insure privacy.
Economic:,
1. A more intensive use of land in effect increases its supply and, therefore,
permits some savings in overall housing costs.
2. Makes feasible the development of smaller and, therefore, less expensive
housing units.
Environmental:
Same as Alternative 1, with greater psychological stress.
Legal:
The analysis of Alternative 1 applies. See footnote 1 which indicates that the
elimination of side yard requirements would help reduce housing costs as frontage
is quite expensive.
Alternative 3: Allow for mobile home subdivisions.
This alternative assumes the new zoning ordinance would establish regulations
for mobile home subdivisions.
Land Use and Social:
Same as Alternative 1 except that most (72.5%) of the survey respondents expressed
a desire to be at least 10 blocks away from a mobile home court.
8. Additional buffering and zoning regulations will be required to minimize
negative impacts on neighboring residents.
9. A mobile home subdivision will offer an alternative to mobile home parks.
10. Mobile home park residents may benefit as this provides competition for park
owner.
Economic:
1. Permits the mobile home owner to gain an equity interest in the land as well
as the structure and, therefore, makes mobile home living a more attractive
investment.
2. Could shift some of the demand for housing away from multifamily units.
3. Could make mobile homes, in addition to land they rest on, subject to taxa-
tion, thereby increasing revenues and tax base.
Environmental:
1. Mobile houses are not well insulated and have a large surface/volume ratio
and are, therefore, not energy efficient. Any ordinance encouraging the use
of mobile homes encourages energy -inefficient housing.
2. Mobile home subdivisions are effectively high-density housing complexes which
• 3 •
produce high traffic volumes, noise, air pollution, and stress due to
crowding.
3. Adverse edge effects would require buffering and screening.
4. Requirements for associated open space would decrease the adverse effects
of mobile home subdivisions but increase the cost of individual houses.
Legal:
1. Constitutional: Appears to raise no constitutional issue.
2. Code: Allowing mobile home subdivisions would be within the City's power
Un -der Iowa Code, Chapter 414, Municipal Zoning, coupled with the City's
approval power over subdivisions under Chapter 409.2
3. Case -Law: Regulation of mobile home parks is within the police power of a
municipality.
Alternative 4: Revise mobile home ordinance.
This alternative assumes that if the mobile home ordinance were revised, mobile
home living would be a more attractive alternative.
Land Use and Social:
1. Will probably increase the quality of the mobile home living environment.
2. May encourage more people to try mobile home parks as a housing alternative.
3. Will probably decrease the negative impacts on surrounding residences.
4. Residents of mobile hcme courts will benefit, although rental fees may
increase as a result.
S. This will probably increase costs for, or disadvantage park owners in other
ways.
Economic:
1. Could make mobile home living a more competitive alternative to traditional
and multifamily homes.
2. Could lead to further negative fiscal impacts since mobile home courts consume
more in services than they return to the City in taxes.
Environmental:
1. Same as Alternative 3, Number 1.
2. This alternative assumes that some of the negative qualities of mobile -home
parks (noise, crowding, pollution) would be reduced.
3. If landscaping and screening are required, some of the adverse edge effects
of mobile -home parks will probably be reduced.
Legal:
Clearly, the City has the power to revise the existing mobile home ordinance.
However, whether this could make mobile home living a more attractive alternative
is speculative. Depending upon how far reaching a revision is envisioned, many
of the same, basic legal issues involved in the proposed landlord/tenant ordinance
could arise.4
Alternative 5: Look at alternative housing for low and moderate income people.
This alternative assumes the City could try innovative techniques to help reduce
housing costs such as housing cooperatives, lot lease -back and parcel assembly.
• 4
•
4.
Land Use and Social:
1. Would provide home -ownership opportunities for moderate income people who are
currently unable to purchase homes.
2. Home -ownership generally would increase resident concern for property and
neighborhood quality.
3. Would increase density of single-family housing.
Economic: ,
1. Would require major capital expenditures on the part of the City.
2. Would remove additional land from the tax roles.
3. Would increase the overall supply of housing which could help to hold down
overall costs.
4. Would permit some innovative housing alternatives which could set an example
for other developments and possibly lead to some cost savings in housing
construction.
Environmental:
Comment: Environmental impacts will vary with the type of alternative housing
chosen.
Legal:
1. Constitutional: Appears to raise no constitutional issue.
2. Code: Several chapters of the Iowa Code already provide a framework within
which the City can try to help reduce housing costs.5
3. Case Law: Dicta from federal cases indicates that it may be as a matter of
law that it is the responsibility of the city and its planning officials to
see that the city's plan as initiated, or as it develops, accommodates the
need of its low-income families.6
Redevelopment of blighted areas has been held to constitute a valid
public purpose for which public funds may be appropriated.?
SUMARY TABLE
Land Use
Economic
Environmental
Legal
and Social
Alternative
1
+
+
+
+
Alternative
2
+
+
+
+
Alternative
3
+
+
-
+
Alternative
4
+
+/_
-/+
+
Alternative
5
+
+/_
0
+
COA@1LNTS AND FOOTNOTES
Land Use and Social
On the general survey, large portions (39-541) of every income group said they
would consider purchasing a garden home. Although the number of respondents who
would consider purchasing a townhouse decreased with income, 251 or more of each
income group responded positively.
Of the respondents, 671 felt well-designed garden homes should be included
in single family neighborhoods; 24.41 did not. 55.31 felt well-designed townhouses
should be included in single-family neighborhoods; 34.31 did riot.
Legal
1. Sternlieb and Sagalyn, Zoning and Housing Costs, (1973). This study concerned
the effect of publicly imposed land use controls upon the cost of single-
family detached housing in New Jersey in 1971.
Williams, in American Land planning Law, Section 66.43, page 136, sum-
marized the finding of this study thusly; ".....the direct correlation
between lot size and price was (as in previous studies) found to be weak
and so, 'large lot zoning alone does not produce expensive housing.' (Id.
at 66.) Yet, the study clearly accepted, with some reservations, the builders'
standard argument that on a larger lot, it was necessary to build a larger
house, at least where the differences in lot size were substantial. For this
reason - plus, the high cost of subdivision improvements, and so of frontage -
large lot and lot width turned out to be the next most important influence on
housing cost after size of the house and the socio-economic status of the
municipality. (Id. at 44.54). Thus, the effect of large lot zoning is not
direct (through land cost) but indirect through the cost of frontage and the
correlation between large lots and large homes.
"The net effect of all of the above is to confirm what is becoming the
generally accepted order of priority for the various influences upon the cost
of single family, detached housing. The first two are the prestige of the
community and house size (including requirements therefor). Lot size is a
lesser factor, and its influence is mostly indirect (through frontage require-
ments and their effect on house size) rather than direct (through land cost).
Finally, if subdivision requirements were decreased for lower density, this
would have an important effect."
2. Iowa Code, Section 414.2 empowers the city council to regulate and restrict
the erection, construction, reconstruction, alteration, repair or use of
buildings, structures or land within the zoning districts it creates. 'Ilius,
the council could zone land to allow for its use as a mobile home subdivision.
Iowa Code, Section 409.14 requires council approval of subdivision plats
within the city or within two miles of the limits of the city after review
and recommendation by the planning anti Zoning Commission. Also, under this
section, the council as a condition of plat approval may require that the
owner of the land bring all streets to a grade acceptable to the council and
comply with such other reasonable requirements in regard to installation of
public utilities or other improvements as the council may deem requisite.
Thus, council has broad powers over subdivision plats, However, further study
should be given to what substantive requirements should be applied to mobile
home subdivisions as opposed to the current subdivision code.
3. Kordick Plumbing _& Heating Co. v. Sarcone, 190 N.W. 2d 115 (1971).
4. In exercising its home rule power in this area, the question becomes how far
the city may go in legislating as to the rights and duties of property owners
and tenants before it impermissably intrudes into the domain of private or
civil law governing civil relationships, which is the province of the Iowa
legislature. The city must take care not to enact ordinances which are
inconsistent with state law (i.e., Chapter 562, Landlord and henant; Chapter
135 D, Mobile Homes and Parks).
S. Iowa Code, Section 220.2 establishes the Iowa (lousing Finance Authority. Under
Section 221.2, a governing body of a city which wishes to provide housing to
lower income families is eligible to apply for participation in a rent supple-
ment program. Such funds are made available by the authority to cities on a
one-to-one matching basis with funds supplied by the cities that participate.
Iowa Code, Section 403A.1 allows any two persons of full age, a majority
of whom shall be citizens of the state, to organize themselves for the purpose
of the ownership of residential or business property on a cooperative basis.
Under 499A.2, the body cooperative may build and construct apartment houses
or dwellings and lease, sell, or otherwise convey them among other things. As
a corporation is a person within the meaning of the chapter, the possibility
may exist for the city to become a member of a cooperative with other private
corporations for the purpose of building apartment houses or dwellings. (Here
Footnote 3 of Issue P is relevant in regard to Iowa Constitution, Article 3,
Section 31, which prohibits appropriation of public money or property for
local or private purposes unless allowed by two-thirds of the General Assembly.)
It would appear that the city, becoming a member of a cooperative with
other private corporations in order to provide housing for low-income residents,
has the primary objective of promoting a public municipal purpose and does not
primarily promote some private end. 'Ilius, it would appear to be constitutional.
ISSUE Y: Mint should the City do to improve the quality of housing?
By constantly improving the quality of housing in the City, not only are costs
of future rehabilitation and redevelopment programs reduced, but they may be
avoided. Additionally, by protecting the quality of housing, the City invest-
ment in infrastructure is also protected.
Alternative 1: Continue and expand rehabilitation projects.
This alternative assumes that an active rehabilitation program is essential to
improve the quality of housing that has deteriorated to some extent.
Land Use and Social:
1. Will revitalize established older neighborhoods, ensuring continued utili-
zation of facilities and services (e.g., schools).
2. Will enhance the image and identity of the neighborhoods.
3. Will encourage stability within the neighborhood and will probably increase
property values.
4. Will not encourage efficiency in terms of land use or in provision of utili-
ties and services as it will preserve lower -density housing in the downtown
area.
5. Those actually receiving grants or loans will benefit the most. (Those
people will be low and moderate income.)
G. Neighbors and the community as a whole will benefit from improved appearance
and increased housing supply.
Economic:
1. Contributes to the long-term vitality of neighborhoods by providing incen-
tive for further private investment in housing rehabilitation.
2. Permits continued use of structures of otherwise questionable longevity,
which in turn helps maintain a balance in the supply of housing.
3. Increases property values, which builds the property tax base and increases
revenues.
4. Decreases the pressure for expansion at the urban fringe and makes possible
cost savings in the provision of city services as fewer extensions are
required.
5. Could lead to the renewed use of existing schools in the central city as
central city locations become more desirable for families.
Environmental:
1. This will keep usable housing in older neighborhoods which are generally
closer to the CBD, thus keeping automobile use (pollution and fuel con-
sumption) at a lower level.
2. Psychologically, rehabilitation of deteriorating houses has a positive
effect on the neighbors.
3. Rehabilitation programs will permit improved insulation and other energy
saving measures.
4. These programs will probably prevent replacing of single-family houses by
multifamily housing on the same lot. Multifamily housing in the middle
of single-family residential areas produces negative effects. (See Issues
T and IV.)
387,
0
Legal:
The City currently is using Community Develorment Block Grants for housing
rehabilitation. Therefore, the City will be given priority in obtaining
housing rehabilitation loans for owners qualifying for them.l Thus, the
expansion of rehabilitation projects through direct rehabilitation loans may
be possible.
Alternative 2: Investigate additional construction and site incentives for
multifamily housing to encourage additional amenities (e.g., outdoor recrea-
tion areas, balconies, porches).
This alternative assumes that above a certain minimum, bonuses should be
awarded to developers who provide amenities which increase the quality of
housing. For the purpose of this analysis, the provision of private porches
or balconies directly accessible to an individual unit, or the provision of
common, open space facilities such as tennis and basketball courts, swimming
pools, playgrounds and picnic areas will be considered to count toward the usable
open space requirement in a ratio in excess of their area. As an example, if
400 square feet of usable open space is required per dwelling unit, a private
balcony, which is 60 square feet in area and counts at a ratio of 2:1, would
count as 120 square feet of usable open space.
Land Use and Social:
1. Will enhance neighborhood image and identity.
2. Provision of additional amenities may increase stability.
3. Will probably increase property values.
4. Will be an efficient use of land.
S. Additional amenities may include buffering which would benefit neighbors
and residents.
6. Will probably increase housing costs (see comment).
7. Will encourage provision of recreation and open space areas within the
complex, so will reduce need to travel.
8. Those who cannot afford the additional costs of amenities will be disad-
vantaged by this alternative; however, plenty of alternatives without
amenities already exist.
9. This may cost the developer, but it will provide choice and trade-offs in
development.
Economic:
1. If the incentive to the developer was at least equal in value to the cost
of the desired amenity, or if it afforded him higher rents, the developer
would likely provide it.
2. Would provide more flexibility to the developer which would lead to a
more diverse mixture of amenities in the multifamily housing market.
3. Would require less intervention by the City since the requirements and
the trade-offs for them would be clear to the developer, and he could
make decisions within those constraints.
Environmental:
1. This will probably result in less overall open space, but the space that
_3-
11
0
exists will be usable for more different recreational activities.
2. If there is less overall open space, there will probably be less vegetation
in general and fewer trees.
3. The availability of "on -the -spot" recreational facilities may reduce auto-
mobile use somewhat and, thus, reduce fuel consumption and pollution.
4. Private porches and balconies provide additional space for individual use,
which results in more comfort and psychological benefits.
Legal:
1. Constitutional: Such incentives, if built into the zoning ordinance, would
most likely be upheld as constitutional. The traditional test is whether
such classifications are rationally related to a proper governmental purpose
and whether all persons within the classifications are treated equally. Such
an ordinance is accorded a presumption of constitutionality.
2. Code: No language in Iowa Code, Chapter 414, specifically authorizes incen-
tive zoning, but neither does the chapter specifically prohibit it. Section
414.1 empowers the City to regulate and restrict the percentage of lot that
may be occupied, the size of yards, courts, and other open spaces. Thus,
having the provision of certain amenities count toward the usable open space
requirement may be within the scope of Chapter 414 as a regulation or restric-
tion upon open space.
3. Case Law: Indeterminate. (See Issue C, Footnote 4.)
Alternative 3: present code requirements are sufficient control.
This alternative assumes that present code requirements are sufficient to assure
housing quality in the future.
Land Use and Social:
1. Does little for neighborhood identity and image.
2. Results in limited choice, although as the housing supply increases, deve-
lopers may find it necessary to offer amenities in order to be more competitive.
3. Allows developers to respond to the market which, except in times of housing
shortage, should benefit both developer and renter.
Economic:
No significant economic impact.
Environmental:
1. Under present requirements, housing does deteriorate with resulting negative
impacts on the neighborhood.
2. Miere zoning permits, deteriorated single-family houses are replaced by
multifamily housing with adverse effects (see Issues T and W) and loss of
open space.
.i. Current code requirements do not include energy conservation measures and much
energy will continue to be wasted in older and deteriorating housing.
Legal:
Maintenance of existing code requirements would have 110 adverse legal impacts.
-4- •
SUMMRY TABLE
Land Use 1lconomic Environmental
and Social
Legal
Alternative 1 +/- + + +
Alternative 2 +/- + +/- +
Alternative 3 +/- + - +
CO?PIENTS AND FOOTNOTES
Land Use and Social
Fifty-six percent of general survey respondents said "no" when asked if they
would be willing to pay more for additional amenities. Twenty-nine percent
said "yes". These responses were broken down by those renting or buying their
homes and by the amount they were currently paying in monthly mortgage or rent.
In general, 25-33% of the buyers were willing to pay more for amenities; 60-70%
were unwilling to pay more. Renters tended to vary more on this issue (below).
rent
currently
paid
% willing to
pay more
% unwilling
to pay more
no
answer
number of
respondents
less than $100
39.6%
50.9%
9.4%
53
$100-190
42.0
48.9
9.0
376
200-299
32.5
57.4
10.1
169
300-399
21.2
67.3
11.5
52
400-499
0
80.0
20.0
10
500+
50
50.0
0.0
4
TOTAL
37.1
53.1
9.9
680
Leal
1. 1977 Catalog of Federal Domestic Assistance, 14,220 Housing Rehabilitation Loans
(312), page 455. These loans may be used to rehabilitate property located in
federally assisted code enforcement areas, urban renewal areas, areas certified
for later renewal, for properties in areas under a statewide Fair Access to
Insurance Flan which are determined to be uninsurable because of physical haz-
ards, Community Development Block Grants, and Section 810, Urban Homesteading
Areas. Owners or tenants of property in these areas are eligible for direct
loans for rehabilitation of residential and business properties by submitting
_5 0
the appropriate forms to the local agency sponsoring the program. (In fiscal
year 1976, 5000 loans have been approved financing the rehabilitation of 8,500
dwelling units.)
2. If incentive zoning is widely used, it will work a subtle change in the drafting
of zoning regulations. 77ie orthodox approach to fixing limits on building is
to permit as free a use of the land as consistent with the public welfare. 'rhus,
setback restrictions are as shallow as the needs of the neighborhood require,
and height and yard requirements are the minimum essential to the achievement of
the objectives of the comprehensive plan. 1¢ith the use of the incentives, restric-
tions will be imposed which are as stringent as is constitutionally permissible.
For example, floor area ratios will not be the most generous as are consistent
with the purpose of the comprehensive plan; on the contrary, they will be as
stringent as the necessity to permit a reasonable return will allow. Lacking such
stringent regulations, there will be little incentive to add the features which
entitle the landowner to additional floor space. Anderson, American Law of
Zoning, Section 9.23, page 150.
11
•
ISSUE Z: Should the City provide housing assistance to lou -income residents?
Council decision - yes.
ISSUE AA: What activities should the City pursue to assure energy and resource
conservation?
Council decision - The City should establish energy efficient building
design standards.
The City should offer incentives for multifamily and cluster development.
ISSUE BB and ISSUE CC: Delegated to the Resource Conservation Commission.
ISSUE DD: Should a policy be adopted which encourages neighborhood preservation
by protecting existing resources and eliminating blighting conditions
while allowing change to occur?
Protecting the quality of neighborhoods is an essential element in protecting the
quality of housing and the City's interest. The alternatives hclow offer several
ways in which the City can influence the quality of neighborhoods.
Alternative 1: Selectively improve neighborhood streets, parks and schools.
This alternative assumes the capital improvement budgeting will be used to upgrade
neighborhood facilities in conjunction with housing programs. In some instances,
major problems will need to be corrected; in other instances, only minor improve-
ments are needed to bring a neighborhood up to the level of quality of the rest of
the City.
Land Use and Social:
1. Street improvements will probably increase safety and may, depending on the type
of improvement, increase or decrease traffic flows.
2. Improving the quality of facilities in these neighborhoods will contribute sub-
stantially to a successful housing program, probably increasing stability and
property values.
5. Will improve neighborhood quality, image, and sense of identity, making it more
attractive to prospective families.
4. Will be efficient in terms of land use because it makes the central city more
attractive to more people, maximizing its use and increasing the chance for
higher density.
S. Will particularly benefit residents of neighborhoods where improvements occur,
but also reduces pressure on other community facilities (e.g., schools).
Economic:
1. Would encourage additional private interest in older neighborhoods by providing
an improved investment climate.
2. Would enhance public investment in housing rehabilitation by providing an
improved neighborhood living environment, which will in turn stimulate additional
private investment.
S. Ey improving and re -using existing neighborhoods, the pressure for continued
expansion at fringe areas would be reduced, which in turn would reduce the need
to expand city services in those areas.
4. Would enhance overall property values, leading to increased tax revenues and
tax base.
S. Could help to encourage families with children to settle in older neighborhoods,
thereby making the continued use of centrally located schools feasible.
G. Would likely require a large capital expenditure budget.
Environmental:
1. In some cases, there will probably be increased vegetation through tree planting,
with the resulting benefits of decreased temperature extremes, air and noise
pollution.
2. There may be an increase in usable open space for passive or active recreation.
3971
0 -7 •
3. There will probably be aesthetic improvements which, in turn, reduce psycho-
logical stress caused by ugly and blighted areas.
4. There will probably be a reduction of debris and litter (e.g., due to broken
sidewalks and weed and rock -filled open space).
Legal:
1. Constitutional: Appears to raise no constitutional issue.
2. Code: Such an approach is feasible though it would involve the Iowa City
Community School District as well as the City, and would involve all the normal
code requirements.l
3. Case Law: Indeterminate.
Alternative 2: Revise zoning provisions to require buffering of harmful side effects.
This alternative assumes that the new zoning ordinance would establish requirements
for buffering or transitions between intense and less intense land uses (at the
expense of the owner of the more intense land use).
Land Use and Social:
1. Will ensure a quality and safe environment for adjoining land uses, so will
probably increase stability of residents and property values.
2. Will allow for efficiency in land use as incompatible uses can be located
closer together.
3. Will benefit adjoining uses and the community as a whole, at the expense of
the owner.
4, May discourage the location of high density uses within the City's jurisdiction.
Economic:
1. Could lead to increased housing costs for multifamily units since the cost of
the buffering would likely be passed on to renters.
2. Would reduce the desirability of older, well-established neighborhoods as
locations for multifamily housing since these areas would require multifamily
complexes to provide large amounts of buffering.
3. Could lead to older neighborhoods being, once again, popular places for single
family living.
Environmental:
1. Required buffering would decrease the adverse edge effects of air and noise
pollution, glare and temperature extremes due to intense land uses.
2. If buffering is "live", increased reduction of adverse edge effects will
result through the filtering effect of trees and shrubs and their energy
cycles.
3. Buffering will probably improve traffic circulation and help to reduce its
negative impacts.
4. Buffering will probably result in a reduction of psychological stress caused
by the adverse impacts of intense land uses.
Legal:
1. Constitutional: Appears to raise no constitutional issue as long as the require-
ments are reasonable and uniform. However if the buffering requirements are
0 0
based merely upon aesthetic considerations, such zoning requirements may be
beyond the scope of the police power. (See Issue C, footnote.)
2. Code: Analysis of Issue V, Alternative 2, 2 -Code applies.
3. Case Law: Indeterminate.
Alternative 3: The City should install additional signage and enforce traffic
regulations strictly in residential areas.
This alternative assumes that unprotected intersections in residential areas would
be signed, and police enforcement of the new signage would be needed.
Land Use and Social:
1. Will slow down traffic and may discourage the use of street by through traffic,
2. Will increase safety.
3. The size of the police force will need to be increased to provide enforcement
of traffic regulations in the neighborhoods.
4. Will increase residential quality, encouraging stability of residents and
property values.
S. Through traffic will be encouraged to use arterial and collector streets rather
than local streets.
6. Will benefit neighborhood residents, causing some inconvenience for motorists.
Economic:
1. Would reduce the negative side effects of traffic in older, well-established
neighborhoods, thereby making them more desirable places in which to live.
2. Could lead to a reduction in the volume of traffic and parking in older neigh-
borhoods, placing less of a strain on infrastructure in those areas, thereby
reducing maintenance costs.
3. Would probably require increased police and/or parking system patrols in those
areas leading to increased operating costs,
Environmental:
No environmental impact.
Legal:
1. Constitutional: Appears to raise no constitutional issue.
2. Code: The City has authority to install additional signage and enforce traffic
regulations strictly in residential areas.2
3. Case Law: Does not apply.
Alternative 4: The City should investigate traffic diverters at selected inter-
sections to protect residential areas.
This alternative assumes that in neighborhoods that are bothered by through traffic,
traffic diverters (as illustrated in the trafficways report) would be used to prevent
through traffic. The location of a diverter and its direction of traffic control
would require a case-by-case study of the problem situations.
Land Use and Social:
1. Will slow traffic, reducing through traffic.
• 4 •
2. Will increase safety and can provide walkways for pedestrians.
3. Will require construction of diverters on problem streets.
4. Will divert traffic to other streets (which may include other residential
streets).
S. Will benefit residents on those streets, causing some inconvenience for
motorists, and additional traffic on other streets.
Economic:
1. Would reduce the desirability of older neighborhoods as through areas for
traffic and help eliminate the negative side effects of it, making these
areas generally better living environments.
2. Would require some capital expenditure for construction of the diverters.
3. Would reduce maintenance costs for streets by reducing the volume of traffic
in older residential neighborhoods.
4. Would reduce some of the need for traffic patrols in older neighborhoods which
could reduce operating costs.
Environmental•
No environmental impact.
Legal:
All such traffic control devices must conform to the state manual and specifications.4
SUMMARY TABLE
Land Use
Economic Environmental
legal
and Social
Alternative
1
+
+ +
+
Alternative
2
+
+/_ +
+
Alternative
3
+/_
+/_ +
+
Alternative
4
+/-
+/- 0
+
FOOTNOTES
Legal
In order to construct public improvements to be paid for in whole or in part
by special assessments, the procedures of Iowa Code, Section 3S4.42 must be
followed. General obligation bonds for city enterprises such as parks must
be issued in accordance with Section .354.26, subject to the approval of the
voters in the school district. The district is authorized to issue general
obligation bonds for schools, and taxes for the payment of the bonds must he
levied in accordance with Iowa Code, Chapter 76.
2. Under Iowa Code, Section 321.255, local authorities must place and maintain
such traffic control devices upon highways under their jurisdiction as they
may deem necessary to indicate and to carry out the provisions of the Motor
Vehicle chapter or local traffic ordinances, or to regulate, warn, or guide
traffic. All such traffic -control devices must conform to the state manual
and specifications.
Also, under Section 321.345, local authorities may designate through
highways and erect stop signs or yield signs in accordance with specifications
established by the Motor Vehicle Department at specified entrances thereto, or
may designate any intersection as a stop intersection or as a yield inter-
section and erect like signs at one or more entrances to such intersection.
3. See Iowa Code, Section 321.255, which is summarized in Footnote 2 above.
0 0
ISSUE EE: Should industrial growth and development he encouraged?
Council decision - Encourage the attraction of new and the expansion of
existing industrial concerns.
5971
1; - / BUDGET
0l -l-7, 197�
Qelaaf
MANUAL.
FY 79
IOWA CITY . IOWA
3872
TABLE OF CONTENTS
Introduction . . . . . . . . . .
. . . 1
Management by Objectives . . . . . . . . .
. . . 3
General Continents . . . . . . . . . .
. . . 5
Departmental Submissions . . . . . . . . .
. . . 6
Decision Units . . . . . . . . . . . . .
. . . 6
DecisionPackage . . . . . . . . . . . . .
. . . 8
Priority Ranking . . . . . . . . . . . . .
. . . 10
Personnel Worksheet . . . . . . . . . . . .
. . . 11
Operating Expenditures . . . . . . . . . .
. . . 12
Capital Improvement Program. . . . . . . .
. . . 12
Capital Outlay . . . . . . . . .
. . 13
Equipment Replacement Schedule . . . . . . .
. . 13
Preparation Summary . .. . .
. . . 14
Coordination with Boards & Commissions . .
. . . 14
Responsibilities . . . . . . . . . . . . .
. . 17
Budget Timetable . . . . . . . . . . . .
. . . 20
APPENDIX:
Sample Goals and Objectives 24
Sample Decision Package . . . . . . . . . . . . 25
Sample Priority Ranking . . . 29
Sample Expenditure Detail (Personal Services). . 32
Sample Capital Outlay. . . . . . . . . . 33
Sample Equipment Replacement Schedule . . . . . 34
Standard Purchasing List . . . . . . . . . . 35
Zero Base Budgeting in Wilmington. . . . . 38
CDBG Application Preparation and Submission
Timetable . . . . . . . . . . . . . . . . . . . 48
BUDGET MANUAL
I. INTRODUCTION
Attached are the N 79 budget instructions. 'rho major change is the adoption
of a Zero Base Budgeting format. The name Zero Base Budgeting is a misnomer.
It should appropriately be ]mown as "incremental or variable level budgeting".
This is not a totally new concept,for Zero Base Budgeting is built upon the
foundation of Management by Objectives, expenditure alternatives, and priority
setting, all of which are currently utilized in the budget process.
Zero Base Budgeting is a five-step process:
1) The establishment of decision units. The unit is the structure
around which decisions are made. Generally, these units will be
consistent with the existing organizational or budget structure,
except when a further division would better permit decisions to
be made on a program level.
2) The division of these units into alternative service levels. The
levels are specified in the budget instructions.
3) The analysis of service levels.
4) Establishment of alternative levels of funding.
5) The priority ranking of all service levels.
While this process adds new dimensions to your budget preparation, it is
believed that your efforts will tend to become more analytical and innovative
and reduce the mechanical nature of budget preparation. The principal reasons
II
II
II
'!
II
-z-
for the adoption of the Zero Base Budgeting process are:
1) Strengthens the MBO and priority setting elements of the budget.
Z) Facilitates the reallocation of resources.
3) Provides the potential for more innovation.
4) Provides for alternative policies for consideration by the Council.
5) Increases the role of the budget as a management policy tool for
effective decision making, and de-emphasizes the Council's tendency
to become involved in financial minutiae.
6) Provides another vehicle for measuring efficiency and effectiveness.
7) Provides another tool for measuring the competence of department
and division heads.
It is recommended that all department and division heads review the zero
base budgeting literature which is included in this manual.
If you have any questions concerning the budget preparation, the City
Manager and the Finance Department will be pleased to assist you. Therefore,
departmental budget submissions which do not follow the procedures or are
incomplete will be returned to the department director for completion.
-3 -
II. MANAGEMENT BY OBJECTIVES
M80 requires goals and objectives to be periodically evaluated to see if
they are being achieved within time limits. Department directors will schedule
review sessions for goals and objectives on quarterly basis with their
division heads and the City Manager for fiscal year 1979 beginning
October 1, 1978. The MBO review sessions for FY 78 begin October 31, 1977.
The MBO process should be utilized in the same manner as in the FY 77
budget with more emphasis placed on quarterly assessments of division and
departmental progress toward stated goals and objectives. To as great
an extent as possible, the goals should be related to the management of
the division or function.
A. Goals and Objectives (Form B-1)
The submissions for each decision unit will include a statement of
the unit's goals to be accomplished in FY 79, and a list of objectives
which will measure accomplishment of these goals. Form B-1 will be
used for the submission of goals and objectives. The preparation of
this form by each decision unit will facilitate the preparation of
the department budget. Use the following instructions:
1. To determine to which fund and to which program your decision
unit belongs, refer to the list of decision units by fund and
program on page 6.
2. "Function" - Function refers to the department within the
program. Generally, the function description included in the
FY 78 budget will be used. Departments and divisions are to
indicate changes where appropriate, and/or prepare a new or
-4 -
revised function description where there has been a reorganization.
3. "Activity" - Activity refers to the decision unit being used.
A decision unit is an activity or group of activities which
management determines is meaningful for planning, analysis,
and review.
4. "Activity Goals" - This should be a one or two sentence statement
on intent or purpose of the function. A goal is a concise
statement of the purpose of the organization, or its reasons for
existence. A goal provides a framework within which the organi-
zation operates and a target toward which it can work.
5. "Activity Objectives" - An objective is a clearly defined and
attainable target for achievement within a specified time span
and within available resources which represents measured progress
toward a goal. This should be a series of short statements
describing how the goal will be achieved. This is comparable
to the goal portion of the FY 78 budget. Remember that objectives
describe the desired impact on a situation or specific result
which will be produced by the services provided. State objectives
in terms that permit quantitative measurement toward achievement,
and specify an expected completion date for each objective.
-5-
G. "Activity Measurement" - A measure is a method of determining
the extent to which an objective is being met or the degree
to which an observable impact on a specific problem or
need is being realized. Measurement criteria should rate the
effectiveness of an objective by considering the workload
of the unit, the demands placed on the unit, and workload
fluctuations. A minimum of one performance indicator, with
a specific method of measurement for each objective will be
required. The information will give the City Council criteria
for evaluating the success or failure of the various services
being provided. Department and division heads seeking additional
information should utilize the publication entitled, "Measuring
the Effectiveness of Basic Public Services", February 1974,
published by the Urban Institute in conjunction with the Inter-
national City Management Association. Also, the Finance Depart-
ment has additional reference materialfor review.
7. "Activity Analysis" - The activity analysis is used to explain or
clarify any statements made in the above three categories and
to point out difficulties in achieving goals or objectives, where
appropriate.
III. GENERAL CGN NPS
Form B-1, Goals and Objectives, will be due on October 14, 1977. This form
is to be typewritten with one copy sent to the City Manager and the other
copy sent to the Finance Department. Please note the Budget Timetable (p. 20)
for dates and times for discussion of your goals and objectives.
'1
go
IV. DEPARTMENTAL SUBMISSIONS
All departmental budget submissions will be prepared and typewritten on
Forms B-1, B-2, B-3, B-4, B-5, B-6, B-7, and B-8. The original will
be given to the Finance Department, one copy will go to the City Manager,
and the other will be retained by the department.
V. DECISION UNITS
The following decision units by program and department will be used:
GENERAL FUND:
ADMINISTRATION PROGRAM
City Council
City Clerk
City Attorney
City Manager
Hunan Relations:
General Personnel Administration
Civil Rights Commission 4 Specialist
Collective Bargaining
Civil Service
Finance:
General Finance Administration
Purchasing
Treasurer
Accounting
Public Works:
Public Works Administration
Government Buildings
CQ�N4INITY DEVELOPMENT PROGRAM
Community Development -
Current Planning
HCDA Block Grant
Urban Renewal
1
-7-
O NWITY DEVELOWEW PROGRAM (CONT.):
:lousing & Inspection Services -
Building Code Inspection
Housing Code Enforcement
Public {Yorks -
Engineering
PUBLIC SAFETY PROGRAM
Police - Fire -
Police Admin. $ Training Fire Prevention
Patrol $ Traffic Firefighting
Investigations Fire Administration
Records & Communications Fire Training
Animal Control
TRANSPORTATION PROGRAM
Public Works -
Traffic Control
Mass Transportation
Street System Maintenance
ENVIROMbSffAL PROTECTION PROGRAM
Parks & Recreation -
Cemetery
Public Works -
Recycling
LEISURE F, CULTURAL OPPORTUNITIES PROGRAM
Parks Recreation -
Parks $ Recreation Administration
Recreation
Parks
Forestry $ Weeds
Library -
Library Administration
Children's Services
Adult Services
Circulation Services
11 -8-
The following decision units do not fit within a program, but
ieach unit is required to complete a decision package:
iENTERPRISE
FUND:
Public Works
i
Pollution Control
Water Operations
Refuse Collection
i
Landfill
Equipment Maintenance
Finance
Fa—rkl'ng
Airport
The following divisions are not required to prepare decision
packages and priority rankings, but are required to submit line
item budgets on November 21, 1977:
HCDA Block Grant
Assisted Housing
VI. DECISION PACKAGE
A decision package is a document that identifies and describes
the specific activity or decision unit in such a manner that
management can:
1. Evaluate and rank it against other activities competing
for the same or similar limited resources.
2. Decide whether to approve or disapprove it.
A decision package contains various service levels for each decision
unit described. For each decision unit, a budget is to be prepared
indicating at least three levels of service. In some instances,
more than three levels of service will be included. For example,
-s -
the enclosed sample decision package for Street System Maintenance
includes four service levels. At this point, "projected budget
level" is the amount budgeted for IY 78 plus expected increases
in personnel costs and a 3% increase for all other expenditures.
The three required service levels are: �S
1) at least 10% below the projected budget level
2) The projected budget level g 4 = �'
3) 100 or more above the projected budget level
Each additional level up to a maximum of five levels should represent
incremental increases. Each level is to be described by pointing
out what services could be provided at the budgeted figures and
the accompanying advantages and disadvantages. As noted in the
sample decision package, four alternate levels are provided. Funding
at Level 1 or Levels 1+2 would mean providing a lower level of
service than is presently being provided. Likewise, funding at
Levels 1 + 2 + 3 + 4 would means an increase in the level of service.
The dollar amounts included in each level of the decision package
represent funding for that level only. Each additional level is
then added so that the total number of levels taken together
represent the total service package and the cost of providing that
service. In addition, the following description of each part
of the decision package will be helpful.
1. Activity Description
State and describe the methods, actions, or operations
necessary to perform the package (i.e. what you will do
and how you will do it).
-10-
2. Advantages/Benefits
State the results to be realized by performance of the
package. Bmphasis should be placed on quantifying the
results. For example, an advantage might be to increase
revenue, make something more efficient, provide better
service, etc.
3. Options
State the different ways of performing the activity,
function or operation. For example, assigning the activity
to another department, hiring a consultant to perform the
same task, etc.
4. Consequences
State what will happen if this package is not approved.
State the legal, financial, procedural, and/or organizational
changes that will have to be made if the package is not approved.
VII. PRIORITY RANKING (FORM B-3)
Each department head is to prepare a ranking of all decision unit
service levels by program within their department. Form B-3 will
be used for this purpose. The units will be ranked beginning with
the more basic service levels to the least important service level.
A priority ranking will then be prepared by program which will
necessitate discussion and agreement of all department heads under
each program. (See the sample "Priority Ranking by Program" in the
Appendix) The City Manager will decide total funding for each program.
0
-11 -
VIII. PERSONNEL WORKSHEET (FORM B-4)
1. The Hhnnan Relations Department will supply to each department a
list of present employees' salaries by decision unit by October
19, 1977. Department and division heads should then review the
information, and after discussing their proposed personnel needs
with both the Hannan Relations Department and the City Manager,
submit on Form B-4 a list of their employees with total annual
salary by decision unit. Fringe benefits (health and life
insurance) and workmen's compensation will be included on the
bottom of Form B-4. A grand total therefore includes a total
dollar amount for personnel plus a total dollar amount for
fringe benefits.
2. Personnel costs will be controlled by the AFSCME contract and
projected settlements with the Police and Fire personnel.
The Personnel Department will inform departments of the percentage
increase for personnel costs.
3. Requests for additional personnel shall be approved by the
City Manager before November 4, 1977. If the City Manager
authorizes a requests for additional personnel, the department
director or division head will include a complete explanation
in the appropriate level of the decision package.
4. All personnel sheets (Form B-4) are to be submitted on
November 21, 1977.
-lz-
' S. In preparing the personnel worksheets, the Human Relations
Department, in consultation with the City Manager and the
Department Heads, will establish historic vacancy levels and
reduce the level of personnel expenditures for each department
' and division accordingly. Division and Department Heads will
' have to explain in their decision packages why a decrease
exists in the number and dollar amounts for authorized
personnel.
IX. OPERATING EXPENDITURES
' In FY 79, department operating expenditures, other than personnel,
' shall not increase more than 3%. If extraordinary conditions require
a budget increase over 3% for commodities, services and charges,
' and/or capital outlay for any proposed service level in the decision
package, then that department or division head must receive approval
' by the City Manager before November 4, 1977.
X. CAPITAL DIPROVO4W PROGRAM
' The five-year capital improvement program requests will be prepared
on Forms B-5 and B-6. Departments are to submit items for each of
' the five years beginning with FY79 through and including FY 83.
1. Individual project estimates are to be completed on Form B-5
' with a statement of capital improvement project need to be
completed on Form B-6.
' -13-
2. Departments must include a source of funding for all projects.
3. A preliminary flow chart for FY 79-83 will be distributed on
January 6, 1978 to all departments for City Council discussion
on January 16, 1978.
XI. CAPITAL OUTLAY (FORM B-7)
A listing of capital outlay items will be prepared on Form B-7.
Capital outlay items include such things as desks, typewriters,
chairs, cars, small trucks and other motor vehicles.
1 Capital outlay is distinguished from capital improvements in that
' the former are individual equipment purchases with a limited life
whereas the latter are long-term projects that need planning and
' large dollar amounts for completion.
XII. EQUIMOff REPLACRAEW SCHEDULE (FORM B-8)
In order to plan for the depreciation of equipment and for its
eventual replacement, department and division heads will complete
' Form B-8. The Purchasing Agent will be responsible for preparing
Form B-8 for all pool vehicles. The department or division head
1 will be responsible for completing Form B-8 for all other vehicles
' and equipment.
-14-
XliI. I'RE-PARATION SUMMARY
All goals and objectives sheets (Form 13-1) are due on October 14, 1977.
Each department is to submit one copy of their proposed budget to the
City Manager and another copy to the Finance Department. These submissions
are due on November 21, 1977 and should be submitted in the following
order:
1. a cover sheet identifying the program and department.
2. a current organizational chart of the department which includes
the number of assigned full and part-time personnel.
3. Forms B-1 -
Coals and Objectives
B-2 -
Decision Package
B-3 -
Priority Ranking
B-4 -
Personnel Sheet
-
CIP
B-6)
B-7 -
Capital Outlay
B-8 -
Equipment Replacement Schedule
XIV. COORDINATION WIT1i BOARDS AND COMMISSIONS
A. Budget requests for a board or commission with department liaison will
be incorporated into the departmental budget submissions. Capital outlay
requests for boards and commissions will be specifically identified
within the department budget.
B. All budget requests for boards and commissions will be submitted in
accordance with the enclosed schedule. The staff person listed is
responsible for contacting the board or commission chairperson and
assuring that the board or commission is provided with sufficient staff
support and submits the budget in accordance with the schedule. If,
at the time of the budget submission there is an disagreement between
-15 -
the staff person and the hoard/commission, a discussion of those areas
of disagreement is to be included.
C. The department heads designated are responsible for insuring communication
with and adequate time for consideration of the budget by the board or
commission. In situations where the board or commission is directly
involved in the functioning of the line department, such as Parks
and Recreation and Library, the department head will review preliminary
budget proposals with the board or commission and, in cooperation with
the chairperson insure that the board or commission has sufficient time
to consider the proposals and develop program priorities.
-16 -
BOARDS AND COtiMISSIONS
Goals
$ Objectives
Staff
Required?
Liaison
Airport Commission
Yes
Melvin Jones
Committee on Community Needs
Yes
Julie Vann
Johnson Co. Regional Planning Comm.
Yes
Neal Berlin
Riverfront Commission
Yes
Dennis Kraft
Board of Library Trustees
Yes
Lolly Eggers
PALS
Yes
Linda Schreiber
United Action for Youth
Yes
Linda Schreiber
Johnson Co. Council on Aging
Yes
Linda Schreiber
Mayor's Youth Employment Program
Yes
Linda Schreiber
Other Social Service Agency
Yes
Linda Schreiber
Board of Adjustment
No
Dennis Kraft
Board of Appeals
No
Mike Kucbarzak
Board of Electrical Examiners $ Appeals
No
Mike Kucharzak
Board of Examiners of Plumbers
No
Mike Kucharzak
Civil Service Commission
Yes
June Higdon
Housing Commission
Yes
Mike Kucharzak
Hunan Relations Commission
Yes
Sophia Zukrowski
Parks $ Recreation Commission
Yes
Dennis Showalter
Planning and Zoning Commission
Yes
Dennis Kraft
Ralston Creek Coordinating Committee
Yes
Richard Plastino
Design Review Committee
Yes
Dennis Kraft
Resource Conservation Commission
Yes
Roger Tinklenberg
U
II
I
II
II
II
-17-
XV. RIISPONSIBILITIES
MY KNNAGER:
1. Prepares and coordinates overall presentation strategy/content/
format.
2. Reviews goals and objectives.
3. Provides departments direction regarding content of program
document, information required of them, overall orientation
toward budget.
4. Recommends and decides allocation of resources in conjunction
with Council direction.
S. Interfaces with Council and translates priorities into
budget content.
FINANCE:
1. Compiles financial document and computes summary information.
a. Each department will receive a printout of their actual
FY 76 and FY 77 expenditures, as well as their budgeted
FY 78 expenditures. This printout should be used as a
guide in preparing the FY 79 decision package. (October 7, 1977)
2. Computes estimates and distributes them to departments, i.e.
revenues, expenses, cost increases, common use item costs (phone,
uniforms, insurance and fringe benefits). See Standard
Purchasing List in the Appendix.
3. Generally assists departments as requested.
4. Assists in coordinating budget process.
I
11
II
-18-
5. Assists City pianager in interfacing program document
and financial document.
6. Coordinates financial document format with Manager and
Council.
7. Prepares financial charts and graphs.
8. Prepares explanation of reconciliation of budgeted
transfers.
HUMAN RELATIONS:
1. Provides personnel related information.
2. Specifically provides detail salary information, life
insurance, Workmen's Compensation, Blue Cross/Blue Shield,
IPERS, FICA.
3. Coordinates closely with departments on changes, contract
and non -contract employees'salaries, overtime, exceptions, etc.
4. Provides information on contract settlements.
DEPARTMENTS:
1. Prepare decision packages
2. Establish goals and objectives and performance indicators
information for program document, and other information as
requested.
3. Meet with other departments within each program to complete
program budget.
4. Suggest alternative projects, revenues, cuts, etc.
5. Support/present information to Council.
6. Assist Finance Department with revenue projections.
I
19 -
BOARDS AND COMISSIONS:
' 1. Establish goals and objectives in accordance with the MBO
program.
2. Coordinate budget request with department liaison.
-20-
XV1 FY79 BUDGET TIMETABLE
PART I GOALS AND OBJECTIVES
August 8, 1977 (Monday)
Discussion of FY78 budget with Council; problems and solutions;
discussion of FY79 budget process
September 12, 1977 (Monday)
Discussion with Council on Zero Base Budgeting
September 14, 1977 (Wednesday)
Discussion of FY79 budget process; Zero Base Budgeting
with Department Directors. Council discussion with Clayton
Ringenberg on goals and objectives for FY79.
September 16, 1977 (Friday) 10:00 and 2:00
Discussion of Zero Base Budgeting with Department and Division
Heads. Work Session I
September 27, 1977 (Tuesday)
Public Hearing N1 on FY79 budget process.
October 3-7, 1977
Budget information packets to all area agencies.
October 12-13, 1977
CCN public meetings on the budget.
October 14, 1977 (Friday)
Written goals and objectives and preliminary productivity
indicators and measurement criteria due in City Manager's
office.
October 17, 1977 (Monday)
FY 77 annual audit discussion with Council.
October 18, 1977 (Tuesday)
Discussion of Goals and Objectives:
8:30 - 9:30 a.m. Administration
9:30 - 11:00 a.m. Public Works
1:30 - 2:30 p.m. Legal
2:30 - 3:30 p.m. Community Development
3:30 - 4:30 p.m. Library
October 19, 1977 (Wednesday)
Discussion of Goals and Objectives:
8:30 - 10:00 a.m. Finance
1:30 - 2:30 p.m. Police
3:00 - 4:30 p.m. Housing $ Inspection Services
Human Relations completes update of FY78 personnel costs and forwards
data to Finance for preparation of budget amendments.
-21-
October 21, 1977 (Friday)
Discussion of Goals and Objectives:
9:00 - 10:00 a.m. Fire
10:00 - 11:30 a.m. Human Relations
1:30 - 2:30 p.m. Parks and Recreation
October 24-31, 1977
Human Relations discusses FY79 personnel needs with division
and department heads.
October 31, 1977 (Monday)
Quarterly MBO and performance review with Council
November 1-18, 1977
Community Development prepares (ICDA budget.
November 10, 1977
CCN holds final HCDA budget meeting.
PART 2 FINANCIAL/ADMINISTRATIVE BUDGET REVIEW
November 7, 1.977 (Monday)
Budget discussion with Council - Financial Condition of City
(Department of Finance)
November 15, 1977 (Tuesday)
Preliminary revenue projections to City Manager.
November 21, 1977 (Monday)
All budget proposals submitted to City Manager and Director
of Finance.
Council review of CCN's recommendation of HCDA budget.
November 28, 1977 (Monday)
Council review and approval of HCDA budget
December 1, 1977 (Thursday)
8:00 - 9:00 a.m. Review of Budget Proposals (City Manager,
Finance Director, Admin. Asst. - Finance)
9:00 - 11:00 a.m. Human Relations
1:00 - 2:00 p.m. City Clerk, Administration
2:00 - 3:30 p.m. Finance
3:30 - 5:00 p.m. Legal
December 2, 1977 (Friday)
8:00 - 9:30 a.m. Housing and Inspection Services
9:30 - 12:00 a.m. Public Works
1:30 - 2:30 p.m. Police
2:30 - 3:30 p.m. Fire
3:30 - 5:00 p.m. Parks and Recreation
HCDA budget proposal to Council
-22 -
December 5, 1977 (Monday)
8:30 - 10:30 a.m. Community Development
10:30 - 12:00 Library
December 6, 1977 (Tuesday)
Public hearing on use of General Revenue Sharing funds
Public hearing #2 on FY79 budget
Public hearing on HCDA budget.
December 6-20, 1977
Final preparation of proposed FY79 budget
December 8, 1977 (Thursday)
Reconciliation of administrative adjustments
8:00 - 8:30 Administration
8:30 - 8:45 City Clerk
9:00 - 10:00 Public Works
10:00 - 10:30 Legal
10:30 - 11:30 Community Development
December 9, 1977 (Friday)
LAST DAY TO MAKE CHANGES TO FY79 PROPOSED BUDGET
8:30
- 9:00
Finance
9:00
- 9:30
Police
9:30 -
10:00
Fire
10:00 -
10:30
Human Relations
10:30 -
11:00
Parks and Recreation
11:00 -
11:30
Housing and Inspection Service
December 13, 1977 (Tuesday)
Set date for HCDA hearing
PART 3 COUNCIL BUDGET REVIEW
December 23, 1977
Proposed FY79 Budget given to Council
January 4, 1978 (Wednesday)
Pre -budget hearing for public - discussion of FY79 budget process
January 9, 1978 (Monday)
Council budget review begins:
1:30 - 3:00 Police
3:00 - 4:30 Fire
Quarterly MBO and performance review with Council
January 11, 1978 (Wednesday)
Council budget review:
7:00 - 8:00 p.m. Administration
8:00 - 8:45 p.m. City Clerk
9:00 - 10:00 p.m. Human Relations
II
0
-23 -
January 16, 1978 (Monday)
1:30 - 3:00 p.m. CII'
3:00 - 5:00 p.m. Public Works
January 18, 1978 (Wednesday)
7:00 - 9:00 p.m. Parks and Recreation
9:00 - 10:00 p.m. Finance
January 23, 1978 (Monday)
1:30 - 4:30 p.m. Community Development
January 24, 1978 (Tuesday)
Second public hearing on General Revenue Sharing
January 25, 1978 (Wednesday)
7:00 - 9:00 p.m. Aid to Agencies
January 30, 1978 (Monday)
1:30 - 2:30 p.m. Library
2:30 - 3:30 p.m. Airport Commission
3:30 - 5:00 p.m. Housing and Inspection Services
COUNCIL APPROVAL OF PRELIMINARY BUDGET
PART 4 BUDGET APPROVAL AND CERTIFICATION
February 7, 1978 (Tuesday)
Council sets budget hearing date
3 T.> >�rss si
February t, 1978 (Tuesday) �1
City Clerk publishes budget hearing notice
February 18, 1978 (Friday)
Public distribution of budget
February 27, 1978 (Monday)
Informal budget informational meeting for public
February 28, 1978 (Tuesday)
Budget Public Hearing
March 7, 1978 (Tuesday)
Council approval of budget
March 15, 1978 (Wednesday)
Budget Certification Date
I
HIND Conerai
PRWRNM Transportut ion..
-24 -
GOALS AND OBJECTIVES
IUNCH ON Public Works
ACH VITY Strcet System Maintenance
ACTIVITY DESCRIPTION:
The function of the Street Division is to provide maintenance and improvement of
the street system of the City. Specific work functions include repair and improve-
ment of streets, alleys, bridges, and sidewalks; removal of snow; removal of leaves;
cleaning of streets and catch basins; and minor work on City -owned buildings.
ACTIVITY GOAL:
1) To provide a satisfactory and economical level of repair and maintenance to the
City's street system and storm drainage facilities.
2) To establish a system based on empirical quantification to eliminate oversights
and develop long-range planning for street system maintenance.
ACTIVITY OBJECTIVES:
1) Reduce citizen complaints through more effective programs.
2) Improved cleanliness of streets
3) Improved snow removal
4) To obtain in-depth analysis of street system operations
5) Reduce idle equipment time.
ACTIVITY MEASUREMENT:
1) Volume of complaints received - compare FY78 to FY79
2) Visual observation of street cleaning
3) Comparison of accident reports FY77, FY78, FY79.
4) Computerized management reporting system
a) Standard vs. actual output per man hour
b) % of work performed (scheduled vs. unscheduled)
c) amount of work performed (planned vs. actual)
d) labor utilization
5) Vehicle utilization report which mentions actual amount of productivity time
vehicle used.
ACTIVITY ANALYSIS:
Achievement of above objectives will present insight into problem areas such as
equipment idle -time, productivity, priorities, high cost maintenance items and
should allow remedial action to be taken both during FY79 and FY8O.
'Items which appear to be more expensive done in-house could be contracted out with
the assurance that it was more economical.
'Prefer Level 4 of the decision package because it incorporates all of the necessary
preventive maintenance programs needed to reduce long range replacement costs and
removes the Street Division from a complaint oriented unit to a much more scheduled
' and structured organization.
DATE: SEPTEMBER 7, 1977
DEPARTMENT: PUBLIC WORKS (Street System Maintenance)
PREPARED BY:
UNIT: BASIC STREET REPAIR LEVEL 1 OF 4
APPROVED BY:
ACTIVITY DESCRIPTION:
RESOURCES
CURRENT
'
BUDGET
- Provides for concrete emergency repair
REQUIRED
FISCAL YEAR
FISCAL YEAR
- Provides for street sweeping
- Provides for the repair and construction of sidewalks, curbs and
11
gutters.
No. Personnel
11
- Provides for the repair and replacement of catch basins; builds
-v.
86 375
and repairs bridges, railings and wings; snow plowing of major
Personal Ser
80 724
arteries; spreading salt/sand on major arteries.
Commodities
104,300
107,429.
erv. 6 Charges
105 737
108,909
- Provides for repair of guard rails, hot mix patching.
- Provides for temporary repairs (curbs, sidewalks, streets)
Capital Outlay
227,800
234,634
TOTAL
518,561
537,347
ADVANTAGES/BENEFITS:
- Provide basic services of street sweeping and repair
- Provide for continual replacement of existing equipment
- Would eliminate law suits from negligent maintenance
- Provide for adequate traffic flow during inclement weather
OPTIONS:
- Basic street repair could be done by outside contractors, which may result in increased
cost and unsatisfactory
response time.
- Limited emergency repairs could be provided by other departmental support units
CONSEQUENCES: Will result in increased long range replacement cost which may exceed the basic repair cost
- Citizens complaints about condition of streets and sidewalks (increase)
-'This service level directly related to number of personnel and amount of resources allocated.
- This level represents basic maintenance of City's streets at a level desired by Council
- No street repair done unless specific request made.
DATE: September 7. 1977
DEPARTMENT: PUBLIC WORKS (Street System Maintenance)
PREPARED BY:
UNIT; Administration LEVEL 2 OF 4
APPROVED BY:
ACTIVITY DESCRIPTION:
- Provide management and supervision of the Street System Maintenance
Division
RESOURCES
REQUIRED
CURRENT
FISCAL YEAR
'
BUDGET
FISCAL YEAR
No. Personnel
2
3
- Provide for coordination of building, yard 6 equipment maintenance.
- Provide support and counsel to Public Works Director on street -
Personal Serv.
31,75944,980
related matters.
- Provides training and guidance in methods and safety.
- Provides guidance in the development, maintenance, and repair of
Commodities
50
52
erv. s Charge=_
500
515
streets, bridges, sidewalks.
- Prepares work orders and makes inspections during operations
- Provides work schedules and timetables for maintaining City
Capital Outlay
---
---
thoroughfares - snow removal, street sweeping, removal of leaves
- Provide secretarial support for the division, maintain adequate time
'records, filing, prepares payroll; investigates and resolves citizen
TOTAL
32,309
45,547
and staff i
ADVANTAGES/BENEFITS:
- Provides continuity and leadership to the Street System Maintenance Division
- Provides technical directionfor the repair and improvement of streets, bridges, sidewalks, alleys.
- Provides guidance for division during emergencies (storms, catastrophe)
- Provides for establishment of standard operating procedure, discipline, public relations, standard unit cost,
quality control, and upkeep of financial records.
- Satisfactory investigation of citizen complaints; improved budgetary control
Improved interdepartmental cooldination of, street related prpblems/Improved long/short-term planning
- Increased secretarial support `from part-time CETA to full-time) would allow mans ement to concentrate on
inspections, supervision and guidance to the division.
OPTIONS-
- Management and supervision could be done by other divisions in the Public Works Department or the Director
- Technical direction and assistance may be done by consultants, other qualified City personnel, or in-house
training of maintenance workers.
CONSEQUENCES:- Decreased level of investigation and follow-up on citizen complaints; large workload would be transferr
to other employees (e.g. budget preparation); lack of immediate supervision discipline would lead to abuse of City time
- Would likely lead to a deterioration in the current service level and would create a haphazard program of street mai
- Span of supervision should be no greater than 7 employees per supervisor and would exceed that if no immediate superN
Provided. - Unit would become uncontrollable fiscally resulting in possible budget overruns.
Lsic
M
DATE: September 7, 1977
DEPARTMENT: PUBLIC WORKS (Street System Maintenance)
PREPARED BY:
UNIT: BASIC PREVENTIVE MAINTENANCE LEVEL 3 OF 4
APPROVED BY:
ACTIVITY DESCRIPTION:
"
- Provides for plowing of snow from collector and hazardous streets
RESOURCES
CURRENT
BUDGET
- Provides for construction of barricades
REQUIRED
FISCAL YEAR
FISCAL YEAR
- Protides for removal of silt from drainage ditches
4
— Provides for loading of snow from parking lots and CBD.
No. Personnel
4
- Provides for cleaning of catch basins and inlets
Personal Serv.
50,812
54,369
- Provides for patching of unimproved roadways; provides manpower for
mise. betterment projects as assigned by Council.
Commodities
---
---
- Provides for mowing of City -owned and state-owned right-of-ways
- Provides for maintenance over rock roads and alleys.
erv. 6 Charges
---
---
- Provides for leaf removal, street flushing (limited)
Capital Outlay
---
---
- Provides for routine maintenance to barricades
- Provides for spreading of salt and sand on collector and hazardous
streets
TOTAL
50,812
54,369
- Provides for services to Airport (i.e. mowing, repair of runways,
snow removal) Provide for utility cut repair for non -City organizations; removal of desbris from accidents, fires or
storms, nuisance abatement; limited debris removal (bridges and culverts)
ADVANTAGES/BENEFITS:
- Adds support to level 2 of 3 and provides an additional service level through extension and backup of street
sweeping, snow removal, street repair, (bridges, sidewalks)
- Provides for minimum preventive maintenance necessary to prevent deterioration of street facilities and citizen
complaints.
OPTIONS:
- Request additional assistance during critical times from outside contractors which may
result in increased cost
and unsatisfactory response time.
CONSEQUENCES: - Increased long-range cost of street repair and maintenance
- Some streets would remain snow packed during winter months - Poor vehicular movement
through City streets
- Accidents causing potential liability to City - does not include asphalt or concrete
crack sealing and
any activities or level.
DATE: SEPTEMBER 7, 1977
DEPARTMENT: PUBLIC WORKS (STREET SYSTEM MAINTENANCE)
PREPARED BY:
UNIT: Improved Street Repair & Maintenance LEVEL 4 OF 4
APPROVED BY:
ACTIVITY DESCRIPTION:
- Provides for rock surfacing of rock roadways
RESOURCES
CURRENT
BUDGET
- Provides for oiling of rock surfaces
REQUIRED
FISCAL YEAR
FISCAL YEAR
- Provides for asphalt spot and crack sealing
- Provides for concrete crack and joint filling
No. Personnel
--
7
- Provides for skin patching of oiled roadways
- Provides painting of guardrails/handrails
Personal Serv.
--
55,160
- Provides supportive manpower for other divisions & departments
Commodities
--
50,000
- Provides manpower for work performed by force account
- Provides labor for service building additions & improvements
erv. & Charges
--
75,000
Outlay
- Provides for oil storage tank facility and salt/sand storage facilitICapital
70,000
TOTAL
--
250,160
ADVANTAGES/BENEFITS:
- Reduce citizen complaints to satisfactory level - Resolution of dust problems
- Provide for crack sealing which will reduce deterioration of street surfaces - prevent hand/guardrail deterioration
- Droved yard facilities resulting in improved efficiency
- Provide backup for other division and departments in emergency situations
- Provide for the initial inspection/design and coordination of the asphalt resurfacing programs, chip sealing,
slurry sealing.
OPTIONS: '
- Use of outside contractors (which would add to the basic cost for street maintenance)
- Request for services from other departments could be referred to outside contractors
CONSEQUENCES: - Possible further deterioration of street surfaces, guard/hand rails could result in higher replacemen
- Increase citizen complaints concerning rideability and dust on rock roads
- decrease response time for force account work (sidewalk replacement - private) - Deterioration of employee morale
equipment, and efficiency if service building not improved.
N
m
co:
M MLEM M M M M! v! ='3=
=R -vi TTY RANKING
PREPARED BY: Miller &Keating
PRCG:L\�! PUBLIC SAFETY
ly
_
APPRr;FED BY: !
LEbc ORG. I
L T.—r
�7. C` �.,
CM7VI Yi: R
I EUDIGF1 Y: -!!,R
n.� DCSCR1PTlCX
C
v
1\C/
TCIf �L $
1= ?.
1
I Patrol and Traffic
1
1 3
11
I 383,723
408,216 6
2
Firefighting
1!
3
1
i 391,421
I
416,405 6
3
Investigations
1
3
1
84,317
I i
89,699 i 6
Records and Communications
1
3
1
91,953
I ,
97,822 I 6
S.
i
Patrol and Traffic
2
3
2
42,635
I 45,357 i 6
6
Patrol and Traffic
3
3
3
42,635
f
45,357 6
" 7
Firefighting
2
3
2
43,491
46,267 j 6
8
I
Animal Control
1
3
1
41,383
' I
44,025 6 f
1 9
'
i Police Administration $ Training
1
13
1
I 38,385
1 1
40,835 6
!
10
Investigations
2
3
2
9,368
9,966 i 6
11 (
Firefighting
3
3
3
43,49146,267
I .• i
6
I !
M r M M M M M M M M M M NO3
11 i PRiCMTY RA\iiXG
DEP,1Ri,.=1 P;tEP,12ED 3Y: Miller & Keating
PRCGR-Jt PUBLIC SAFEf1
I
�1 APPRGImL•D BY: _
LEYnL
Cz iU\I:
GRG, I
�.
GSE YEAR
tt
�iJ r l =�1R
J5
R1\K
i A\'D DESCRIPTiC\ I\7.
?CTS $
?GTS
12
I Fire Training
1
3 i
1
66,661
70,916
6
f 13
Records & Communication
I
2
3
2
102,170
108,691
I
i 6
-( 14
Fire Prevention
1
3
1
I 29,644
31,536
6
".15
i Fire Prevention
2
3
2
I
I 3,294
3,504
i
6 !
16
!
I Investigations
3
3
i 3
9,368
9,966
!f 6
I
I
17
i Fire Training
1
3
1
7,417
I
7,890
6 ;
i
I
6
i 18
i
I Fire Training
2
3
I 2
7,417
7,890
19
' Fire Administration
1
1 3
i t
; 27,654
29,419
i 6 i
'
20
Fire Prevention
3
3
3
3,294
3,504
6
21
Records $ Commnication
3
3
3
112,386
119,560
I 6
I
22
I Animal Control
2
3
2
4,598
4,892
I .• i
' 6
,
j t
M O_ J
1- 1
kITY RANKING
PRCGp,k%! PUBLIC SAFETY
DFIVOM1\7
PREPARED BY: Miller 6 Keating
AFPi<Ci t .EY:
LEVEL I. C G. I
"KI-
\J. CF NO) I'
C11ZF.fi\[ Yi<1R
R
\,A> c :L\'D DESCRIP iC\
ICTAL $
TOTAL
23
Fire Administration
2
3 2 I
'
3,073
3,269
i
6 j
I
24
Police Administration $ Training
2
I ,
3
2
4,265
4,537
I 6 f
1
25
Police Administration $ Training
I 3
3
3
4,265
4,537
6
I
26
Fire Administration
3
13
I 3
i
3,073
3,269
6
27
I Animal Control
3
3
1 3
i
I
4,598
4,892
'
6
i
f
I -
I
1,605,979
'
1,708,488
I
I
6
-32-
STREET SYSTEM MAINTENANCE
EXPENDITURE DETAIL
CLASSIFICATION Et4PLOYEES AUTHORIZED BUDGET
[ - FY 1978 FY 1979 FY 1979
6000 PERSONAL SERVICES
BASIC STREET REPAIR (LEVEL 1)
Maintenance Worker III
Maintenance Worker II
Maintenance Worker I
ADMINISTRATION (LEVEL II
Superintendent of Streets
Asst. Supt. of Streets
Clerk/Typist
BASIC PREVENTIVE MAINTENANCE
LEVEL III
Maintenance Worker III
Maintenance Worker II
4 4 48,048
3 3 30,314
4 4 35 610
11 11 1 ,972
1 1 18,695
1 1 15,498
0 1 9,636
3 3 43,829
2
2
4
IMPROVED STREET REPAIR 6 MAINT.
LEVEL IV
Maintenance Worker I 0
SUBTOTAL 17
FRINGE BENEFITS (Health, Life Insurance
Workmen's Comp.)
LEVEL I
LEVEL II
LEVEL III
LEVEL IV
TOTAL.
2
2
4
7
25
22,920
18,732
141,652
i
62,321
261,774
5,936
830
2,168
3,308
274,016
B-4
1
1
1
1
9000 CAPITAL OUTLAY
CITY OF IOWA CITY
1'Y :1979 BUDGET
EXPENDITURES DETAIL.
FUND --_General
PROL'RAI•I Transportation
FUNC:HON Public Works
ACTIVITY Street System Maintenance
'
QUANTITY
DESCRIPTION
DEPARTMENT
ESTIGL4TE AMENDMENTS
T
LEVEL
I:
As halt Street Sealing
Program
50,000
Concrete Repair
10,000
Mudiacking Program
30,000
Extra -Width Program
10,200
_M
Brid a Rail Paintinp
5,000
Dump Truck
11,000
Truck with Front
End Loader
22,000
Snow Plows 5
17,800
Material S reader 2
12,000
Front End Loader45,000
Le Vacuum
,
Double Asphalt Kettle
12,83
SUBTOTAL
234 634
None
LEVEL
3:
None
�.
ELLVEL
4:
Concrete Joint Router
70,000
'
'
Capital Outlay Summary
9100 Land
9200 Structures, Improvements, Buildings
9300 Equipment
TOTAL.
(Transfer Total to Budget Summary)
-33-
304,634
'
CITY OF IOWA CITY
FY 1979 Budget FUND General
PROGRAM Leisure 6 Cultural Opportunities
EQUIPMENT REPLACEMENT SCHEDULE FUNCTION parks s Recreation
ACTIVITY parks
DESCRIPTION
AGE
TRADE VALUE
FY 1978
FY 1999
FY 1980
FY 19811
FY 1982
FY 1983
FY 1984
ESTIMATED
4 HP ARIENS TILLER (913)
76
500
MYERS PUMP (915)
69
GMC CREW -CAB PICKUP (916)
76
6.000
GMC CREW -CAB PICKUP (917)
76
GMC 2 TON DUMP
6.000
TRUCK W/FLAT BED 918
76
7,500
PARKER 35 VAC MACHINE (919)
76
800
DODGE 15 TON PICKUP 224
2
IHC CDB
5,000
5.000
IHC SNOW THROWER (925A)
74
IHC 4' TILLER (925B)
74
IHC 5' MOWER (9250)
74
IHC FRONT BLADE (925D)
74
TRIM MOWERS
1,600
TRASH COMPACTOR
4,200
PORTABLE GENERATOR
500
JACOBSEN SWEEPER (920)
76
TOTAL. ILMAL COST
25,800 36.050 34,200 32,550 28,400 1,000
-35- CITY OF IOWA CITY
FY 79 BUDGET PREPARATION
STANDARD PURCHASING LIST
GENERAL OFFICE FURNITURE
DESKS:
Heavy Use -
Modern or Traditional double pedestal metal desk -
plastic laminate top:
Top - 60" X 30" $315.00
Top - 60" X 36" - 6" overhang an approach side 330.00
Top - 70" X 36" - 9" overhang on two sides and front 360.00
Light Use -
Modern or Traditional double pedestal metal desk with
plastic laminate top. 60" X 30" top 200.00
Secretarial Desk -
Traditional double pedestal desk with three box drawers,
a center drawer and a stationery rack. Also has a
folding typewriter rack and pulls out of side of desk -
60" X 30". 300.00
L-shaped desk group with a 60" X 30" top, and a
30" X 18" L top and a two drawer letter file:
Heavy use 440.00
Light use 330.00
BOOKCASE:
Metal unit with adjustable shelves: 2 shelves 80.00
3 shelves 90.00
TABLE:
Metal leg table with formica top - 60" X 30" top 135.00
CHAIRS:
Executive Arm (Traditional_Style)
Sw ve arm with brushed c9me base and a combination
of vinyl and cloth covering
135.00
2) Side arm chair with metal construction and a
combination of vinyl and cloth covering
110.00
Executive Arm Modern Style)
IT Swivel arm chair with brushed chrome base and a
combination of vinyl and cloth covering
160.00
2) Side arm chair with metal construction and a
combination of vinyl and cloth covering.
130.00
1
-36 -
STANDARD PURCHASING LIST
-2-
CHAIRS: (CONT.)
Clerical Posture Chair with brushed chrome base and a
combination of vinyl and cloth covering: Traditional $109.00
Modern 115.00
VERTICAL FILE CABINET:
2 -drawer letter size with lock
digit
115.00
2 -drawer legal size with lock
60.00
130.00
4 -drawer letter size with lock
display
160.00
4 -drawer legal size with lock
12
180.00
LATERAL FILE CABINET:
- light use
160.00
The price listed is for roll-out drawers, legal
with
printing
lock, and with hanging frames from side to side:
2 drawer
155.00
digit
3 drawer
210.00
280.00
4 drawer
265.00
5 drawer
320.00
For options, contact the Buyer for prices.
CREDENZA:
Cabinet with 2 sliding doors and one adjustable
shelf
with lock
327.00
4 lateral file drawers with formica walnut top
435.00
CALCULATOR:
8
digit
display
- hand held - rechargeable
60.00
12
digit
display
only with memory
160.00
12
digit
printing
- light use
160.00
12
digit
printing
- punctuation - with memory
240.00
12
digit
printing
and display - with punctuation & memory
280.00
Costs vary with type and feature
TYPEWRITERS:
IBM Electric - Costs vary with carriage size and type:
Correcting Selectric 840.00
Selectric 760.00
Acoustical Sound Hood 40.00
STORAGE CABINET:
36" X 18" X 78" with 4 shelves and lock 125.00
36" X 18" X 42" with 2 shelves and lock 100.00
ADDING MACHINE: 160.00
DICTATION EQUIPMENT: See Buyer
11
-37-
RI BLI OGRAMY
' David W. Singleton, Bruce A. Smith f, J. R. Cleaveland, "Zero -Based
' Budgeting in Wilmington, Delaware" in Governmental Finance, August, 1976.
(This article is included in the Budget Manual
' Peter A. Pyhrr, "Zero Base Budgeting", Harvard Business Review
November/December 1970, pp. 111-121
Peter A. Pyhrr, Zero Base Bud etin : A Practical Mana ement Tool for
' Evaluating Expenses, New York: Jo IViley F, Sons, 1973.
Logan M. Cheek, Zero Base Budgeting Comes of Age, AMACCM, New York 1977.
' David Leininger and RonaldC. Wong "Zero Base Budgeting in Garland, Texas",
Management Information Service Report (IM), April 1976, Volume 8, #4.
' Donald N. Anderson "Zero Base Budgeting: How to Get Rid of Corporate
Crabgrass" Management Review October, 1976.
1
II
1
1
1
1
I
1
1
J
1
II
1
Ma
A,DITIONAL i3UDGi r1NG
:USES ALMOST
I;XCLUSIVELY ON
I NCgEASES FROM YEAR TO
'YEAR IN ACCOUNTING
CrxTFGORIES WITH LITTLE
`,i ZST'EMATIC REGARD FOR
PROGRAM PRIORITIES
AND RESULTS. ZERO-
;;ASFD IIIJI)GIi1
I;it LOST•'.S ON -GONG
,•t!,"I'IVITIES':U'ITIF SAME
]INTENSIVE SCRUTINY
USUALLY RESERVED FOR
NFW ACTIVITIES,
APPLYING ANALYSIS OF
ALTERNATIVE METHODS
OF SERVICE DELIVERY,
Pi-,l'ERh1INING MINIMUM
SERVICE LEVELS ANT)
YSTEMA17CALLY
APPLYING MARGINAL
ANALYSIS TT:CIINIQUES TO
I)ROVIDE DF,CISION
?•TAKERS A PRIORITY -
ORDERED SFT OF BUDGET
CHOICES
In recent years, governments at every
level have shown growing interest in
adopting progressive management
techniques. Those techniques are in
stark contrast to such factors as tradi-
tion and political considerations.
which have historically played a
central role in governmental man -
ligament. The rapid growth in gov-
ernmental rxpenditures in recent
years, and the fiscal crises con-
fronting many governmental units,
have contributed significantly to the
growing interest in adopting (hesm
modern approaches to management.
As in the private sector, the funda-
mental area of management in the
public sector is the planning -
budgeting -accountability process.
Consequently, it is in this area that a
large share of public sector manage-
ment concern and improvement has
taken place.. Executive budgeting,
performance budgeting and the pro-
gram planning and budgeling system
(I)PBS) all represent innovations—
and advances—in this field.
One of lhr• ma'nr d�V16aL'k5 !P
most budgetiny3ystn11]15 Litsheir li..
results, A relatively new appruacn to
planning and budgeting—zero hase
20—GOVERNMENTAL 1`I1,14ANCE—Au2utl 1975
bu dgul ing—aims In overcome l It is
drawback by suljr._rling all proposed
activities and (-Vnnditureti to lI i;
type (rinlensive scn0fny normalf�
rr.surve:J�rr �i_riiN7iseli-iiuw' pre:
giaiiTs %ern base. budgeting, or %I3I).
oginated in the private sector and
has been little used in the public:
sector. This artirlu presonts a cast.
hislory/af its fmploowntatiun in the
municipal government of Wilming-
ton, Delaware.
With it resident population of
110,000, and a daily commuter influx
from ilia suburbs of another 60,000.
Wilmington is far and nu•;q• Delm-
wart.'s largest city, and its cummer-
cial hub. The City also houses half of
the state's welfare recipients, a
quarter of the senior citizens, a
quarhv of the persons with incnmrs
helm\ the poverty line, and nearly a
third of thecrime--although it repre-
sents only 15 percent of tile, state's
population. Since VI80, the city's
resirlont pnpulilt iuu has drr.liuud 1%
perrenl.
Ful fisrnl 11170, Wihninglon'sgon-
oral npuraling hudgut was $:-1.11 mil-
lion, of which $!I.I million was an
upendingsulully In Iho. IoLnl School
dislrit 1. Iia addition, Ile Lily nptretes
sopar.dr funds for its wader, sewer
and Iytarine Terminal kiiwraliuns,
lolaling511.9 million in Fisrel 1076,
7
I
pnd administers another $111.'' mil -
line annually in federal,'slale, and
private grant fluids. Thu city's call -
!fill budget for Fiscal 19711 amounted
I0 $12.5 million.
Wilmington's governmental strut. -
lure, under home -rule charter, is
iii.characterized as "strong nle ,or-_
munr-II" form. -'rho `prusi3nl`M�o r,
fhiiiiiasC. ,,\lalonuy, has held office
since. 1973. During that time. Ma-
nny has establisher] a national rep-
hation for fiscal restraint, limiting
e, growth in Ile city's operating
hudgel to ally 18.1) percent for all
our of his budgets combined—rum-
tared to 16 percent annually under
his predecessor. A mainstay of Malo -
Itoy Is approach has hemi improved
nanagenu;ct n( rester u1t —
natic irodm:livitc inmovementfsn
tl Variety of cit , s,1rvice5.
�Lithrlr ruutinuing review of the
tlanning - budgeting - accountability
pruress in Wilmington, Mayor Ma-
loney and his staff had identified a
bialy of disadvantages with III(-
Listing
tte;xisting process—a fairly typical,
although heavily detailed, line-itonl
tppro:mh. Among the more signifi-
ant difficulties were,:
In, it106, n I nfmmotiun:'I'he ex.
IaltnilnTgY,,'t piuCesz pewit ed little.
' rueful information ahout Iho mourn
and level of services provided, the.
renem fill prmvidhp; the service. the
heeefirioi,o of Ihn service, or Ihu
' r!soorrea io-nded to provide a spo-
cifir. level of sen•irn.
64,11ng
I. Assunmjd: In general,
I o! nm gi:mitg—pincee5 took as given
' yoruul,eavnedl offotruusad almfrooms' nthnellerelynl
on
the increase .sought for the coming
year. Ifapendiluws included in pry-
'vluus nu gian us-aliay..tulWrud-gym sign'tfirtfnl itis}fitco—tiC
7c_ rlTiFnugTi Ilio rite dIJ
not have se Ificiew resources to fund
all services at the requested—nr
1 even curumt—Iecel, (hero was no
meaningful pi,mess availahla to
malae rlmirvs and IruL!-offs among
the rity's different st-wires no any.
thing even apprnarhing a roOdo n•
fm(r<tr,l ,j (:Lung_ t_:ucL:nr: l'hnn!
Ives un n„ � haniw, ii:, pre,fna ltiii
-not, i.t'rif •igntflranrchaTT);cs jit�lfin
fuioiiligof pari, ulor wrvices, ,uol
n'ri svtli�uiali,i wac In. idem''fy Ih,i'•
ehsoilll, olinimmlln I,:vi..l cif si ri7eo
(if6nyhss'LicL Ilu•r Itp mull pnv9dn.
Simihrtly. 'lien! ,vas no way to
'project Ihn likely 6,nu:fi15 of sl(tnlll•
cool funding inrreaws I. n pnrtir.-
u for sor•Iru,
39 -
Although these problems are rela-
tively conn on to all levels of guv-
ermnent, they were exacerbated in
Wilmington's naso by the severe and
rontinuingfiscal problems which
beset Wilmington and so many of
America's older cities:
Little or nn growth in exisling rev-
unue suum.is, coupled with it high
level of Inflalion and esressive
uucmploymenl.
I ockmi-Ill union wage sellirments
iu the 5.7.5 pmr,ml rang'.
Itelau,,ly "fixed" expenses, such as
penslatts, d0A service, iusurunr-o.
and ilia public, school subsidy, cmc
wining rmghlq half the availehln
revenues.
cunlinuing deumnds for new pro.
grams jar continuation of programs
formerly federally funded), parliru.
larly social srri,.es.
til rung aversion in any las increases,
which lend in acc,!lurate the erosion
of the cily's tax Kase.
As a result of these concerns,
members of Mayor Maloney's staff
uvne allracled by the rnncepl when
they learned of the smCl:etbSful use of
ZB13 in the private, sector.' After fur-
ther research, cliscussiolis with a
consulting firm having considerable
Z BB experience, and consu Ration
with city offfrials in Garland, Texas,
one of the few public jurisdictions
which had utilized ZBB, a decision
was made in the late autumn of 1975
to promptly implement ZBB fn Wil-
Inington.
In most organizations, the. one
type of budget request certain to ru-
cL'ive intensive screening and anal-
ysts is the one that proposes to uslab-
lish a -new service It is likely to he
post!( now sewir."us 7f:Fo t)Tsr. t rd
-gaiini aims to apply this same type
of process, in a more sophisticated
manner, to all proposed expendl-
lums.
Essentially, %13B seeks lu nerom-
plish this thrnngh a pLuctissiti-N h
d'ixai3is alrprnjtmed aclivities (and
expondituii:s) into rcthesfvr limits of
Ina lageablr, size, suhjr.cls 15(iin In
itl-H-scr-11fil f,_i it � 1*11MIi atcly
-e5Jphlishes a rank_ -order of (hose
units whiI.. i Tiven unliiniled ro-
,W.Urro .._u'n.u1d_bvft'�1. A sr.-
lerted level of expenditure is Il -o
matched against the final rank enb:r-
ing, and if fluids are not sufftl.ienl to
cover the entire, listing, lov;est
priority items are, left unfunded until
file cumulative total of till, funcb•rl
priority list exactly nlalches the It -%,•I
of fundingthtd is available. ']'III! final
priority list, balanced with available
funds, then bcrmnes the budgcl.
ZBB_is._a spphislisalod elalla} !_
atic melhod(if reviewing and evalu-
ntIjF all_nnerauons of iii ,
organization, current or proposed:
al}owj ig Izu I �e_ ons ani
manner; and encourages the realla-
calion of resources from Inw• to hi;_h_
rltlril' 1f1g1:a111S. BCCam SC UttU.'—
nalrtre of the process involved, /,BB
also lends to have some important
fringe benefits, such as involving
more nt agVis in f11L'_61A!(1:411Lla"RLr%.
cass,ta
ltrovidintore fnforma-lion
and'R(Jlinn LdLcl:i ill wiJUrs._m_I
eslablishin 6 :I systematic basis f,,r
mail etnenlh}oblerlivesenlprinr-
iheg,
The foundation of ZB13 is it feur-
step analytic. process. Conceptualiv.
the steps are:
1. Establish Budget Units, A
burlgel unit f!: it grouln of exisii1"'
on'oposT(1 .ir. )VI les w 111C t nlillil
br. tHenlT ufT:is a nru�ram. rlt may
coilslst of only one distinct arlivilr,
as in the. case of trash collection fn
Wilmington's budget, or it may con-
sist of a group of closely related ac-
tivities, as in the cast- of Wilming-
ton's recreation program. In nearlc
every rase in Wilmington, tile
budget units were smaller th_an a
de_ .par nleil, cunsts mg Fit IM! per
viously eslabli.su: — nil�1L—fiti_t1}ii •i
L'11nDIDgAL_•_As, a result, Ih,i
budget units did not Lriiale a in
and unfamilfmr organs itlnnaI sllnr-
lure, and car It budget unit haul •1
readily idculihahle• rnanrigl!r.
2. Dividt! Bridge( Units into 1;,•r
Ow! h,•vr.ls: Since. 1111! t•.ni,•I..
quantity and yunlily of servi„! to I..•
provided is u•.unlly it none n•,dkli,.
quustiun than whelp, -r m not .t gjk,
budget unit will be funded at ,:11.
eorhJlllilgLLunil is dfvfdgd IIIIIJ eec-
eral allermillg levels (if _sen•irr.III
I
1
1
LJI
1
1
11
'I
must claws in Wilmington, this
[legal] with a level et about half of
current, and advanced in steps
through a slightly rtduced level, they
current Irlvel, and a possible ex-
panded Iuvel. Eaarh level rr.ltrnsents a
forecast of tale cost and service con.
se�(ue ces.—ciL_tfn anima jewel.
In %%'flningtun's hu-gd et, 117 61
budget units %ren: eventually df -
7. Analyze Service Levels: Given
the relatively small sire„ and pro-
granlnlalfr, cohesiveness of the.
budget waits and the sarvire.lev(ds, it
is Ilum possible to analyro each seg -
mail of the proposed budget in con-
siderable, detail.']'he maid to provide.
;I given level of a particular service
cony be explored. polenllfl alturna-
live apprnarhes to count a particular
need may be. identified. The nine -
power and other costs proposed to
provide a given level of service may
be examined for reasonableness. A
given level of marginal cost may be
compared to a given marginal in-
crease fn the quality or quantity of
service.
4. Frinrih, Honking of all Service.
Levels: Following the, analytic pro-
cess, all of the pole-ntially desirable
.SCCVjclJc.vds_"Tei all of theh`ud tont
units, as revised and—fin�ize:d, arc
-rank-lite;n. 11...li i a sin to li's .'f Ito
hasic ronrnpl is that a given enrvire
tenet is rented higher than all of the
serviu: lawns 111a1 would ho fore. -
gone:, if nee.eseary, In make available
ihn four'•; for that given scrvir, r level.
Meanwhile, al level of expandilure
(typically the projection of revenue
from existing; sources) is selwAml.
Since, generally, revenues art. not
sufficient la cn%e:r Ile. entire list, Ute
priorily rankings determine which
service towels will be. funded and
which will not.
-40-
ht practice, the ZB13 pruruss is
considerably more complex than
this conceptual frunlewurk. Wil-
mington's experienco %afill ZBB, in
chronological order, is presented in
IhI' following sections.
The first step in developing
Wilmington's ZBB program
was the development of a
detailed timetable covering
the major milestones in
implementing the decision
making process
Following Mayor I\faloney's deci-
sion in the late autumn of 1975 to
implement ZBB in Wilmington, a
varie[y of planning and deeision-
ntaking becanlo m:cessary. In recog-
nition of Lha priority ascribed to the
project by the Mayor, two memhers
of the Mayor's staff were, from the
oulsel, given essonlially full-time
responsibility for 21313. Also, it run-
sullimg first %vas retained to assist.
The firs[ step was the develop-
ment of it detailed timetable, front
DAVID W. SIN(ILE:I'ONII Is currently
Dhecfar of the Program Analysis Uivl-
slon for Ile. City of Wilmington, Dela.
warn with the main responsibility of
developing and coordinating the pot-
grain
ro-grain budgets far all city agencies and
participation in review of annual oper-
ating budgets. Ile attended both
Swarthmore College and the Univer-
sity of Pennsylvania from 1964.1959,
joining the City of l5'ilmingtnn in 1971.
BRUCE A. SMITH is currently Fiscal
Analyst in the Office of lite. Mayor for
the City of Wilmington, Delaware, Iia
received his Ph.D. in Econornlu from
Virginia Polytechnic, Institute and
State University In 1974 with his major
in fluidic finance and urban eco-
entries, lite Its; major rmponsibdlity as
chief budget officer for file operating
hudget in Wilmington, performing de-
tailed analyses of valdous city aervtres.
JAMES R. CLF.AVELAND is currently
an As"while with M nlagemrnt Anal.
ysis Center, Iw:. he Wishinginn D.C.,
sprrializing In public finance ned
zero.hasrsl hudgelheg. 1'rednusly he
twill positions it, Finance %ith Ibn cimre
of Sun foss, California azul New Yank.
He rrce{vrd Ilia A.R. drg;nx in Interim.
tinnal Relations frunl Sbulfurd 11nivrr.
lily and his M.Sr.. in 1'. onomics frun
file London Srhnul nl Ecnnnnd rs.
-- — GOW.RNMENTAI. I1NANCE— Aucusl 19711
the starting point in mid Noymmbl•r,
1975 to Ile: charter -mandated Cit%
Council submission dale, April 1,
1976. From ihr, outset, it %vas reulg.
nixed th,d the schedule ryas tight.
with lilllu allowance, for slippage.
The major milestones of Off-
schedule
heschedule were:
Tusk
Completion
Detee nlhlnnnn of
Apm. vs to he
inrbutrd
UP,mmber5
Hevinw and Apinuvlll
of Hodges Mallnal
Der..-ndwf I2
'fruining lln.gram
Duo•ndlel 19
Illeliminar%
Departnu mud %1111
Submksl.ms
IdIM.I.0 16
i'1lid I DI'11,11 1111I'll t,II
J_BH Subwissinns
3anudry'10
Deparhnanl,d Hearings
Fnhruap' 27
Pwllllllllary Rinikills
and He%,!Mn!
F.sttundlt
March 5
Mayor'., Apl.rn%at of
I'Inal Ranting
March 19
Pnacntdliull of Hudget
In Cuuucil
April 1
.4ppr -mini Hudgmby
Council
June 1
A fund.unental decision %vas the
comprehensiveness of till: ZBH prn-
ces:u. Thr possibility of including
only son,- departments or only cm..
lain expelulituies (such as personnel
costs) we-; discussed. However, the
ranking process which culminates
ZBH was judged to he far more mean-
ingful if ,dl requests competing for
the Gener,el Fund were ranked cont-
pelitively.
While Wilmington's water, sewer
and Marine Terminal funds are,
maintained independent h. of the
General Fnnd, it was decided to in-
clude all of these funds in the ZBi3
process— although they would bar
ranked separately. This was dmv;
both to strengthen the, overall rc-
sourre allocation process, and also
hecause any year-end surplu,es in
Ihes1: funds aro transb:ned to the
Genumil Food, dins giving nxpe:ndi
lura: fit Iles( funds it dirge.l impart
nn Ihr.(;oro ml Fuad.
Likmvfs , federal and Rule grail
funds, which had never prewimnh
In -I'll inrlullerl in Ibn. pro.
cl!ss (vxc-�pt fill- ("(Item re%1•nur
shalinRl %%^rr. to he im.ludrd l0 1 o, h
(lase, fedoud and sl:dn gated Mmol..,
were. In Iw idanlifie:d as .tine it. Int
shown as part of Ile, rnievanl budget
II
II
unil and servirae loved. The. fnrlusiou
dgrant funds would providesignifi-
uunl additional infurnnitiun, aol
previously available to decisiou-
Inakorn in la .syslcnmlic manuor. In
mnay cases, this dada would show
major aclivilies a•bich had been
ttlo known to derision -makers he.-
ause they used no city funds. In
!orae. rases, Ihe' data identify critical
areas with heavy dependence oil
Iwranl (nods, which might have to be
assumed by city foods upon expira-
fon of file grants.
The, major exclusion front ZBB
vas to be. file operating subsidy to
he local school district. hu view of
Ihe. Ifmilod firne available, file rela-
'ive, aufunomy of Ihe Board of lidura-
ion, mad the L•ua that the bulk of Ihe
schools' funding conjits directly
front stale approprfatfnns, it was
tnsidered Infeasible to include Ihe
o
rhools in the. first implementation
of ZBB.
1.,Hie other significant excl n
runt ZBB was to Iles o -called 'fixed'
expenses. Due to III:! lack n�tlrl-
over
Were oinioel from
(Once file extent of inclusion in
fill had bean determined, it was
beim
In identify liedgel units. In
the gnead majority of rases, budgel
nils were. selected to correspond
ilh the. :Slaillislied divisions
Within e.ily deparhnenrs. Thus, for
fsample, Wilmington's Public
arks department was divided into
ludgel units, corresponding to its
11 divisions, Planning and Develop-
enl %vas assigner) four hudgel units
arching its established divisional
Iruclure., and Ihe Auditing and
Treasurer's Departments were, each
signed one budget unit, since these
ere no established divisions within
those deparhm:nts. Ina few rases of
cry large, divisions with highly
efed functions, budget unils ay.ro
iablished to subdivide. the esfab-
lished divisions. 'Thus, in Ihe. De.-
rlme:nt of Public Safely, III(,, police,
If fire divisions were suh•divided
filo, respeclfvuly, six and three,
bod ; d units.
i -A Uiliciai slop in Iheplauwii��np-
a ss vete; rhe. drvr.la nor nl a Inruav ..
-41-
Tho
4 -
Tho Unique nerds of o%'ery jurisdic-
liou make it impmbabiv Thal any set
of standardized forms cut ho used
for ZIIIi. In Wilmington's cash, eon•
sidur lion was given In such local
factors its past hudgel practice, ac-
counting
o-counting system nre-rl.v, nvailnbilily
of dada and other factors in devel-
oping ZBB forms. When; possible,
file forms were designed to resemble.
the previously used budget forms. A
total of seven furans were designer)
and utilized, although later experi-
ence suggests that the. process call
and should be somewhat simplified,
with the member of founts reduced.
The final planning step was Ihe
preparation of a budget manual, con-
laining 21313 insfruclions as well as
traditional data, stich as salary
scales, hospitalization insurance
premiums, and submission dead-
lines. Although it was recognized
that life manual would have to be.
supplemented with training and
technical assistance support, file
manual did serve a useful purpose, as
the. only written eonnpendium of
ZBI3 fornis all(] instructions.
Recognizing the need for technical
assistance, a learn of nine, budget
analysis was assembled front Ihe
Mayor's Office, fill. Finance. Depart-
ment, file Deparinenl of Planning
and Development and City Council's
staff. All had past experience fn
fiscal analysis. After if period of in-
Irnsive training, one of the hud,ml
analysis was to be. assigner) In each
city department, to assist them in
responding to file demands of 21313.
Will these, steps completed, ZBB
was ready for presentation to the
city's departments for implementa-
lion.
A training program for
department heads and
budget unit managers,
comprising two half-day
sessions, oriented managers
to ZBB concepts and
procedures, as well as to
specific instructions on
utilizing the ZBB manual and
forms
The impnnrlio;; implron•nlalioil of
/811 wa,l fornoally announced to
Wihninglon's dr:parinnent heads by
the, Mayor in hall: Novenlhor, 1!175.
Although -a:, with any radical dc-
parluru h'um Ihe. past praefic: Ihele
was saute rrilicisin and rosklifiro,
r.00pmalion ,Ind suppnrl Iron the.
departments generally proved In ba:
ex cel but 1.
Actually, the first involvmnunt by
most departments had been in early
November, %+'hen the city's consul-
tants met will duparinn it heads to
gather their impressions of lite
former budget process, suggoslions
to improve. Ihe process, and soffi-
cienl information regarding deparl-
nental ope.ralionis to identify budgel
units. This infornatiun was all used
iu developing Wilntingion's ZB13
formal.
Following Ihe formal announce-
ment, depalli m it heads and ImdgO
unit inllagels (usually division
managers) trete. split into two work-
shops, of about 25 participants each,
for training. H.ich group received two
half-day training sessions, at which
budget manuals and forms were also
distrihuted.'I'hr, first session wits an
orientation to ZBB concepts and
general proi.edures, while, the
sernnd session was used to review
specific instructions in the, manual
and to discuss samples of compleled
forms.
The, first major prricss for
department•:—tho preliminary
analysis-fnruced largely un Ihe def-
inition of service levels. As till. most
radical find fundamental rnn.epl of
ZB13, it is essential Thal service: hwoIs
be soundly dr%•rlaped. I)rilia�tinciits--
were, given some guidance in de-
fining service levels, but funcliuned
largely nn Illeir ern. For eath.srr-.
%,I(:(! level of •ach bu�—coil, dr-
pariniunfs ie�ii�-asitn snliiiiil
--par
- irifuniinlmii :if7ir�irli oiflltr.
sanaple.formil i_-_-------.....
Some depallmonls fell 111.11 .I rr
docs -d service ho-ol might be nisron
shoed as ;I re,.nntitten daaliun fu up.
erase: ;it rhal heel, and n••.i•:Ird
proposing rcdoeod bents. As a In.
cult, all budge I unit maual;cic ,vera.
fustruelml Ile, o-r.r•il. Iced•: n•lu,•
sealed opliuc „ mol ere nunn�:oda
lion". and III, fir:l h•%..I nnr.l nal
cxa J•rd 411-l0!l of Ili,: i tit i,•el ,;\prn-
dituro luve.l. Ilunnrally, if sornnd
Ievnl below lao n:nl sim iec %res Io lw
I
I
I
I
-4z-
proposed, Ih!it Ihu r.urrenI IevnI, and
finally an iwprnvcd lurvel of cervico
(when desirable:), yiudding it recom-
mended aliuinRlla of four Norvico
levels. In fact, budget units ulli-
nnataly suhntitlud averaged three
service. levels Inch.
The strurluring of service levels is
cuumlative., If a given cervine level is
funded for a depailnlent, thus- that
Precede it will also be, funded—al-
though those, that follnw will not
' PRELIMINARY
B -Z SERVICE LFVE7. DESCRIPTION
-------
ileparbne til
Ul vis(un
f7udE xl Unil
1^.h,•:nn
Dyol2,—wt
n n nn ti t
t:an:
n
Service Level 'Title
Extensive Pl asni nR to Devel�tivltles
Desr,ribe Services Provided and Actl Vitiea Performed in this Service Level
Update Urban Renewal plans and the comprehensive plan for areas of
the city, :aid prepare zoning ordinance amendments. Prepare plans
for the expenditure of community Development funds and coordinate
the execution of those plans. Prepare designs for simple capital
improvement projects. Develop housing programs and initiate down-
town business improvement projects.
BrieRy Describe Resources to be Used In shim Service Lcvel
1 Senior Planner
1 Corc,nnity Development Coordinator
1 Re.';,-wal Technician
1 Dreftspercon
Total Personal Services 957,79'7
"CUR.iaTIT I.F.VEL'1
_ Est. F'ixca11977
Cites_ Non -Cil
No. Poe.
Cost too
R^nl service Level Title
Describe Se rviees Provided anti Activities Performed In rods Se rule- LIM
nri-Ry Drsarihe Re suorces to 1, Used in Ihls Service Level
F:.t, fisc n119T7
CITY Nnn-r-Ity
Zi—OO1'RR-MMUNI-AI. I'INANCE—August 11970
naresnurily ba fundud.'I'his assnnq
tine weans that till: ends fur ran I,
level tiro costs to be. added In pri,•i
levels in it deparli n tit in iinfor I„
produce: Ihu. higher Lova of i -I virr..
Service, levels vary nilliui Ib.•
goanlity or the quality of a dr.parl
meet's operations, or bulb. For el-
alnpla, in firefighting, 11w first 6e,.
vire level [Might either (ruoillitl
Voriolion—Reduce by r)(yg, III,,
number of fire, companies, but umin-
tain manning on each r-onqunly;Is ,it
preseml. Quolity Variation --stain.
Iain the same number of fire, congla
hies as at present, bill reduce Ily fill;..
Ihu manning an each. H1alh--Redu,-r
both till. number of Ctnupani,•s and
the manning on each by 251%.
Service levels were devised in all
of Iheso numners in Nilminglon.
Sanildfinn, in PubliL Works, varied
primarily the frequency, and thus
the quality, of service:
Levc1 1: Once weakly pick-up al
club
L,•.cnl 2: 'I\vi(:e weekly pick-up al
cull,
Lmel 7: Pick-up frcnn u:ar nr side
Fv, r, 1. plus sperial sm vi,.cs and
schunl pink -ups (elurr:nl lens])
The department apparently did not
Sep, sufficient marginal improvement
In show possible servicv expansion
lO a fourth level (which could have
been three Innes a week pink -up).
Hiller deparinlenis defined servil .,!
II:VeIs lary;edy in terms of this quantity
of se-rvicrq provided on it priurilizcJ
basis, holding quality relatively cun-
simrt. FIJI Milople, the polirl p;drud
division budget unit in Puhlir. Sudety
divided current and pnqulsed ser-
vices into six levels:
Loel I: aa+ir. pulrul .111.1 lu'dilli.
nuq• In%rslignlion of major crimes
I,,:va12r Preliminary Im•uslicalion of
all criminal complainis: rr.punvl In
prindly non -criminal calls
Lnl•al :I- Follow-up m1 ell , rimiunl
,still non -criminal ud L: np,•r.n inn if
fall mud Nclnrllve I: ukilig slL,rco-
nurut
Lcv,•I 4. Im. aced pslkiul; union c.
mein: lulk,•rvire papoose I., u.nr
,.riniluulaalls
Lcv,•I ', Addlllnuul pnlnd,,
I', . iu! -. go"I'k is it J.". 11
L.-% '.1 a: b:qum•J.,n til
l un {.ill, nnfnn.r uu•uI .,nd •., lionl
a oust 11l' Inw liuus
Ilviv. the ,Ieparinuml sill sulfi,.ienll
nurrgin111 ilnpruvcmrul lu shmv n-
pansiun fit I sixll, cervico 11;t ld.
I
1
Whatever the approach, the ubjuo-
ve was to show till. department's
;sessmenl of %vital .services should
he provided if ell%• a curlaiu levr.l of
falling was available.
Once levels %era defined, an esti-
Aad cost fr,r each level was Lalcu-
lated. This did not prove to be diffi-
�:1
11, since the hulk of the costs were
rsonnel toll fringe. benefits, which
could ho readily correlated with the
manner in whir.h personnel were
tided among the levels. The ser-
e levels and costs, :long with cer-
tain additional data and it prelimi-
c n) ranking by the department head
re submitted by the departments
ntid-lonmtry, 1676. *['his provided
the Mayor's staff with an eslimato of
e total budget, and an opportunity
discuss possible revisions in the
service level structure arid priority
Imkings with the departments. As a
-43-
restdt of this process, several signifi-
ennl n:visiuus were made.
In the latter pall of January, de-
parlmeuts conlploled Ihu detailed
final service level descriptions, as
shown an the, sample. form 11-9. In
addition to the information reported
in the preliminary phase, more, pre-
risr, data and certain supplemental
information %vere required for the
final submission.
A unique feature, of ZBB is the
"program measures" reported for
each service level. Up to seven mea-
sures could be selected for each
budget unit, which would be re-
peated for each service level and ie-
flect the increasing quality or
quantity of services provided at each
higher service level. Unfortunately,
many departments had not arcuirm-
lated such data, and were unable, to
provide thn dnsirahlo %oval of docu-
D-3 SERVICE LEVEL ANALYSIS
pe t tn: ell
thle Service Level
- general administration of the Dept. of Plan. & Dev
- preparation of the Criminal Justice Plan
- preparation of the Capital Budget
- preparation of federal & state grant applications
- collection of data & other pertinent information
necestmry to complete the above mentioned tasks
- Fiscal monagement of Department Federal Grants
- Collection & dissemination of facts about the City
- Secretarial support for above functions
Propimatlon of the Criminal Justice Compreh8nsive P1
is required by contract M10-07-000-01-76 with DARC.
Preparation. of the Capital Budget and program Is an
msential activity of city government. Section 5-700(e)
of the City Charter states that the Department of Plan-
ning will prepare and submit the capital budget and
prgram is the Planning Commission.
The city benefits substantially frog the use of fed-
eral and atate Surds obtained by grant applications.
Fiscal & operational management of federal grants is
necessary, for effective and efficient utilization of
funds. In order for the above mentioned functions to be
camoleted effectively. data collection and analysis oust
mentation of program measures.
Ilo%vuver this process has ccstob-
lishud it foundation for future year.;,
and has led to efforts by several dr:-
harllnerits as %yell as the Mayor's
staff to begin Iha accumulation of
MOM useful data.
'Phe final service level description
Was accompanied by a detailed lino
ilei] listing of all costs associated
with that service level, including
personnel, fringe benefits, materials,
supplies, and equipment. 'rhesu
forms resulted in a cmisiderab10 bulk
of paperwork and a significant %vork-
load Io the departments, although
the work was more time consuming
than onerous.
In addition to the service level and
lino item listings, each department
also submitted a departmental
priority ranking of all budget units
and all service levels within the,
Diviuion
Budtet I
carried out. Overall dcpw tmcnt admin -
Describe rod Jenny Resource• Required in I.M. Service Level
1 Planning Director - heeded for overall administrative control and expertise for all divisions and
special projects.
1 Grant: & Contracts Manager - needed for fiscal management of federal grants, other financial mat-
ters in department, and maintenance of census data and other Management Information-rystama.
1 Criminal Justice Coordinator - prepares criminal Justice plans and serves as expert on crime
trends in Wil--.
1 Program Analyst) It is necessary to have these two people to prepare ei,pltal budget
1 Director of Program Analysts) & asctct in data collection for other activities.
1 Cl,:rk Ftenoeraaher III - Secretarial. functions for above --mentioned professionals.
Auaant Lea—GOVI:NNMEN'I'AL I'INANCE-25
I
1
1
I
1
1
1
department. A running commutative
total was included to show the
amount required to fund the depart-
ment to a particular priority level.
Also, departments were asked to in-
clude. a memorandum indicating the
rationale, for the order of prioritiza-
tion selected.
The focus then shifted to the May-
or's staff for the preparation of flit,
city's camsnlidafed budget.
Facing a $2.6 million budget
gap, Wilmington could either
raise taxes, reduce service
levels or not fund the lowest
priority service levels
The Mayor's Office review of de-
partmental budget submissions
begun with a preliminary assessment
of the, city's financial position. Do.
partmental general fund requests,
=including requests for new or ex-
panded services, amounted to $19.9
million, an increase of 15.6 percent
over the, existing budget. With a 1-2
percent revenue growth likely, re-
(1wasis would exceed revenues by
ruughly$2.f3 million.
Wilminglun's Z13B process pre-
swill"d a number of alternatives,
tvllif.11 r.uuhl be, used singly or in
cuulbioation to deal with fill. 52.0
million gap: 1) Raise taxes to in-
erease revenues; 2) Reduce the cost
of providing a specified level of ser-
vice; or 3) Not fund Invvesl priority
service levels.
The first alternative, is generally
least desirable. For policy reasons, it
was ruled out in Wilmington at this
time,
The, second allprnalivii is generally
most dtlsirablm, in that it kinds In
represent ;Ili increase in efficinnr:y or
productivity. In prar-tico, this ap-
pruach is mold similar to Iradilional
budgeting, with the primu emphasis
-44-
uu Inrge, ur unusual expenditures,
Separately from the hearing!.,
and expelidilurvs showing signifi-
members of the Mayor's staff also
rant increases from till: current
reviewed the departmental submis.
budget. llllinnately. Wilmington wns
sions for coin plot eness, r.larily, arith.
successful in reducing the depart•
metic accuracy, and other largely
menial budget requests by approxi•
technical considerations. This pea.
"lately $900,000, or 4.5 percent,
cess, along with the hrdrings, rc
through Ihesu line -item cuts,
suited in minor adjustments In lilt
Once revenues are established.
Iota] cost for most of the service
and the cost of each service level has
levels.
been reduced as much asgeasfllif
'' Formal ranking of priorities is Ili,:
the third allernatty f� prioritizes_
crucial and distinctive step in ZBB.
comes into play. Tills-a1'fernative
A variety of criteria may be used,
represents the, unique characteristic
both formally and informally. Some
of ZBB. For Wilmington, this pro-
criteria are relatively general, proh.
vided the mechanism for identifying
ably applicable to any jurisdiction.
$1.2 million in departmental re-
while some are more related to local
quests that were of lowest priority,
goals and objectives. Frey critp-rie
and would not be (unclad.
considered in Wilmington include.:
A major portion of the adlniristra-
Impnrlance of the service level in
tion review process was consumed
terms of the perceived health, wel•
by departmental budget hearings.
fare, safely and satisfaction of ,:by
Each department was afforded a ses-
w0d,•nis
Bion of 3.6 hours duration, attended
Sunwdury, charter, and cmeractu;d
by both members of the Mayor's staff
amunflwents trial by Ili,: service
b:vel
and reprJsenlatil'es of City Council
Potential consequences of ,at pro -
Finance Committee. At the hearings,
cidinetheservice levet
discussions focused oil opportuni-
Fedwal and slats funds recoved
Iles to reduce the roll of providing a
dupendre, on a parllcular exp,:ndi.
tare of city funds
specified level of service, as well as
Infonual assessment of the quality
on the rationale for the structuring of
of the snrvireprovided
the service, levels and the prioritize-
Cesl effectiveness of the service.
lien of the department's SCrVICI;
Ircal
PnJer,nrc, where feasible, lodirect
levels. Numerous minor changes in
sarvic,•s to the public over admfnis.
the costs of service levels were made
Iranv,: crisis.
at the hearings, generally with the
The final analysis and ranking
consent of the department head.
process hegan with flip. decision lu
Changes in prioritization were not
lump together a group of services
made at the, hearings, although areas
identified as essential, without for.
of disagreement with a department
cher prioritization. Little benefit was
head's rankings were identified,
seen in discussing whether till. must
Budget hearing discussions also
fundamental service levels of polis,:,
covered program measures, benefice-
fire or snnitation service is more
aries of file servico, involvement of
important. Clearly, all of these, ser -
grant funds and marginal cost of in-
vices will he provided, at Ipast, of Ilia
creasing service levels.
first level of service. Thur., 3.7 of the
The consensus of both depart-
196 service levels were lumped to -
mental officials and members of the
gather as a "basic" group, and
Mayor's staff was that with the intro•
ranked above all other services.
duction of ZBB, the hearings pro-
Since most budget units had devel-
vided a more comprehensive and
oped a first service; level of 40 In 60
penlrating view of a department's
per!.lent of the existing funding level,
activities than hearings in previous
the Inlal cost of flip, "basin" group
years. Specifically. the basis for pro-
amounted In $10.0 million.
piked expendlfures was usually re-
After is,dating file "hit till:" 1;1111111,
Well much more directly and ration-
$9.0 million in reque..sl„d Service,
ally to services provided than in the
levels rpnnnincd, as against only 4;7.11
past. Also, more, dirussion of the
million iu furecasled rpvcmoe. 1.,I.
value of specific, snrvines, and the.
forts f(witsed nn anelNais an,l
need for specific services, was pos-
ranking of ill: 162 se.rvir.o IUvels
Bible.
remaining.
2e.—Gm'LR F.MFNFA I. FINANeni—AuxuO 1970
I
1
I Ntuuerical ranking of 162 separate
rnu is quite difficult --particularly
hen the 162 items are as varied as
the, service, levels in Wihuington's
udgel. Consequently, the process
egan by dividing the remaining ser:
ice levels into four groups: High r
priority; Medium priority; Local
rnorfty; and Service levels not to h
i ndrd for pol i cy reasons'.
It
initial ranking of the ro-
raining service levels showed that
.venues were sufficient to cover the
ntire "high" and "medium"
priorilygroups and part of thn "low"
�enmity group. Service levels unde-
irablu for policy reasons ware
anked below the "low" priority
roup, but were effectively elimi-
ated from further consideration.
With the: number of service levels
to be ranked now reduced to groups
f manageable size, all of the service
vels in each giuup were, then nu-
u:rieally prioritized. For the "high"
and "medium" groups, this was
om(m.bat academic, since ravenous
ure sufficient to fund all of the sor-
vice, levels in Ihe. gruup. However, it
was judged important to establish
ruse rankings as are first organized,
onlpre:hensive, slate.inent of the,
City's priorilies.
For 16 "low" priority group the
pemfic numerical ranking was of
ritical imporlance.Of the. 56 service
levels within the group, funds were
efficient for only about half. After
sufficient
u•en: assigned, a cumula-
tivo funding, total was calculated to
i-termirin the point at which reve-
ties were exhausted. An analysis of
to rankings showed that many of
the service levels below the cut-off
.int were now or expanded levels
f servir:u, although 21 levels of ser -
ice rornantly being provident also
II
II
II
II
-a5-
fell below the cut-off. Two levels of
new or expanded service ended up
above the rut -off.
The complete: rankings, as pro-
posed by the Mayor's staff, were then
presented to the Mayor for his con-
sideration. The Mayor direrted it
number of minor changes, but gener-
ally expressed satisfaction with the
priority order. However, the Mayor
was concerned that a number of ex-
isting service levels involving in-
cumbent employees fell below the,
cut-off, necessitating immediate lay-
offs and service cutbacks.
As en alternative, the Mayor's staff
developed a factor known as "spe-
cial attrition." A factor had already
been allowed for normal attrition.
representing funds that would not be
spent for salaries and fringe benefits
during the period positions remain
vacant between incumbents. Now, in
order to avoid layoffs and abrupt
service cutbacks, an additional
factor was e-alruhated representing
antiripated savings from positions
which would he left unfilled for the
balance of the fiscal year when they
became vacant. Although this may
still entail modest service cutbacks,
unless compensating productivity
increases are achieved, they would
occur on a scattered basis
throughout the year. Whilu the exact
positions in be left vacant could not
be identified, past turnover experi-
enre indicated that the, savings bud-
geted for "special attrition" were
reasonable and attainable..
Following the. addition of "special
attrition" and minor priority adjust-
ments, the ranking was finalized. No
layoffs would be required, ul(hough
some existing services without in-
cumbent personnel still fell below
the e.ut-off. All told, the "basic"
group and ranks 1-110 were shown
as funded; ranks 111.162 were
shown as not funded.
With the completion of prioritiza-
tion the, budge) was thein ready for
final housekeeping details, printing
and submission to City Council.
in a radical departure from nand
jurisdictions which have imple-
meule.d %1113, \layer Maloney de-
rided that Ile: Council should re-
ceive Ihe actual %Illi durualenlldton.
other jurisdictions using 21311 have,
mcast Ihoir budget in traditional
Augmt 11170—mwtlaNMI:NrAt. HNANrr.-27
format for higislative considrraliuu
and public distribution. Although
[his derision was sure lu signifi-
cantly increase the complexity of
City Cuuncil's work, Mayor Maloney
regarded Council's involvaomnl in
Ihr, achnal %1311 prnress as critical.
On first exposure of the new
budget to the City Council,
much discussion was given to
the listing of federal and state
grant funds under each
program—information the
Council never had before.
There was also increasing
discussion of program
measures and the marginal
costs associated with the
higher service levels
City Council's exposure to 21113
had actually begun at the very start
of the City's involvement. The Coun-
cilneun were thoroughly briefed hu-
forc the. decision was made to adupt
Ilio process, and had registered their
support by adoption of a resolution.
In addition, Council's Finance
Committee Chairman and it staff
member had attended all of the do-
parlmenial hoarings.
Council's consideration of the
completed %1113 budget began with
an orientation session, devoted to
both the process and the output of
ZBI3. The 'LH13 budget represented
such a total departure from past
budgeting practice:—in process as
well as appearance.—that a thorough
orientation was essential.
As in past years. Council thin pro-
ceeded In hold public budget hear.
Ings for earl department. The: hear.
Ings, which lasted from one. Io thno
hours each, repeated soma of Ihe
discussion from the administr;d ion's
budget hearings, but primarily
served as a forum for the dist u.ssion
of concerns of particular relevance Iu
the Cooncihnon. Several depart-
ments used the hearing to appeal
either a ranking or it lino i(um cul
made, earlier by the administration.
In a number of eases, unennbers of Iho
public or cily ennpinyens rliised
questions abmu spor.ifir: ilanl, in Ilio
budgcl. Mumburs of Ilia Mayor's staff
attendod Intl of Ihe, hearings, +old
I
1
1
1
II
II
II
II
wen: uflon asked In explain the ra.
lionale behind Ihe prioritization of if
partirulnr se:rwice towel.
Prior to the hearings, Council
agrm:d that no actual changes in the:
rankings would be discussed until
all of Ihe. hearings were complete
and all r.ununrnls were heard. This
avoided moving service levels up
and down the ranking until all filo
hearings w•er: completed and the.
Council could put all the levels in
persperl i ve.
Initially many of Ihe Councilman
aprprodOwd the. hmdgO unu:h as Ihry
had appn,acherl past hudgvls. Mosl
of the, discussion ronrrrned Ihe fn•
rriollenlal changes to Ifne-il,:ms.
f luwever, as Ihe hearings proceeded
greater and grealer ldlenfion furusmi
on %BB considerations. The ro-
tiunale. for a particular ranking, for
,:xdmple, was discussed more and
enure frequently. Much interest cen-
tered on thio fedoral and state grail
funds—information which the
Council had nrvor before had avail-
able in a systematic manner. There.
%vas also steadily increasing discus-
sion of program measures and the
marginal rods associated with a
higher lev(.I of service..
Uur pruhlrm was Ihe, greatly ex-
panded amount of paperwork. As
part-time (:fly officials, many of Ihe.
Councilmen had difficully finding
the lime. to digest Ihn large•, voluaa of
information ora a department prior to
fill. hearing. The line-ifent hudget
delail. it 1000 -page dorminent, was
simply tun heavy and bulky to be
readily taken home for review.
At Ihe, conclusion of file hearings,
Council's staff rheckad with all of
the Councilment to determine what
rlmunges fn Ihn administration's
budget should he. considered. After
all had leen pollred, only five
rhaq{es w'or'e: prupusvd. 'Throe pru-
pusnd r.hangrs r.unee.rnr.d service
-46-
levels, with it Iola] cos( of $15,000,
which had been ranked below the
cut-off point hilt Which Council
wished In see funded. Oil(,. chango
was a line•-ilenn rut of $6,000 within
a funded service level, which (he
department head had argued for
convincingly. The final proposed
change of $6,000 was if service, pre-
viously provided which file depart-
ment Involved had flat included in
their budget submission.
The latter proposal was must
easily resolved by the administra-
Iiou's coninflunenl lu continue the
service, with personnel under if
federally -funded Summer Youth
Program, thus not requiring any ad-
ditional City funds.
Council met at some, length to con-
sider possible rerankings to acrnm-
modate, the olher desired addiliuns
to till. budget. The process proved
diffirull. livery service level sug-
gested for dnle(iuu, asif Iradenff, had
its own supporters among lhu Coun-
i.ihmm. Most of Ihe smvicn lovels
just abuvr. the, cut-off point included
incumbent personnel, whom the
Councilman were nal anxious to see
tall] off. A lax increase was seim as
unpalatable.
Ultimately the small amount in-
volved fn the desired changes
proved derisive. Council recom-
mended to the Mayor that the four
service levels in question be re -
ranked to include them in the
budget, and that all service: levels
then he reduced by 0.1 percent to
provide, the needed funds. Since ex-
(rnsive. ]inn,-ilam nulling had already
br.e,n undertaken, the. Mayor ac-
re.plud Iho recommendation only
with Ihe• understanding that the 0.1
percent savings would he achievud
through attrition, by slightly fn-
r,n:asfng Ihe Ifne; a position rr-
mafned vacnnl belwmm Inrumbails.
Council agreed, and Ihn appropriale
rerankings were made. With Ihrse
changes, the Council soon thereafter
gave its approval In the entire
budget.
Generally, (:fly Council appears to
have found %BH preferable In the.
City's former prur.ss. A major
reason appears lit hr. that Council
now gals more infornuiliun, and
more useful Information, than Ihuy
Wit — GOVIX-AU NTN. HNANCa— AuµuJ 1970
have uvur had before. 'rhe ranked
service Irvel formal, although not
legally hinding on the Mayor, pro-
vides Council with a strong mnr.d
commitment as In whal svrvicrs will
be provided—whereas lho old poi -
cess had provided only it cununit-
ment as (o what rho Ifne.-item expun.
dilures would be. Many Cuuncihn(n
have expressed a desire to continue
the ZHB process in future years and
possibly expand it to ulhur oral..
such as the operating subsidy to the
school district and the City's capital
budget.
It is important to establish the cin.
text fu which zero base, budgeting
was adopted in Wilminglnn. Essen-
tially, it represented a logical step
forward in a well-established pro-
cess of fiscal restraint and improved
management of resources. It fol.
lowed earlier experimentation with
other budgeting innovations, parlh.-
uldrly program budgeting. It drove
lwavily on analytic and manag,nnunl
.staff resnarees which had horn eh:-
veluped over an extendod period.
And it relied on the, cooperation and
support of Ilse Mayur, City Council•
and city department heals. The pro.
Craa and the results could differ sig-
nificantly in a different context.
Insufficient time has passed to
assess fully ZBB's impact on Wil-
mington. However, a number of con-
clusions may be drawn as to the ben-
efits already derived, and the
disadvantages.
On the positive side a kry arconl-
pl sli-lucH -hes ,tII Idle Vie( ilud
idenlifiratfor] of all file services pro•
vn e �liy ILa city—. regnrrlI' ss of
fiinding.uun:u. Such information
ivies-of:4i�r-'prrvfuusly available in
syslenudic form. Once id,mtified, all
programs aid rxpendilurry %wr.r,:
mvfetverl to a level of del;iil usually
ruaerved for propusml ne%v pro-
grams.
Also hrnefir.ial is Ihn nslatlish•
nttmt of a sys(emafic priorilizmion of
the Gily's services. This esfahlishes a
firm foundation for fulur: years
when the City's financial . tialinn
[Tiny ['(.(little extremely difficult de.ri-
sfuns, and helps assurn that those
decisions will hoe hasod on ,i wrll-
dm'ele,ped sel of priorities.
ThrMill proles itself was 111•n(1i•
sial, in Ilmi it involved nearly all
mnnagemcul personnel he Iia bud-
teling pnlr:ess, ronsidenlbly more
Ilan in the past. Also, as it planning
olnrl hudgeling peeress, Z1313 in-
nlvarI these; personnel In a for more
ennprehensive. resource allocation
mncess.
The larking of federal and state
NWant funds establishes a mechanism
or identifying the importance, of
these funds to the City and antici-
;ating the future demands to replace
hese funds with City funds when
hey expire. In effect, Wilmington
has adopted a comprehensive plan -
�ung and budgeting process for all its
rsources.
7'lne statement of priorities and
�rogram measures by department
eads serves as an excellent basis for
management by objectives pro-
gram. In the past, the. City's approach
u management by objectives had
un nmre general, making perfor-
-ance assessment more, difficult.
With th . level ref specific detail pro-
ided by Z1313, performance against
hjurlives can be measured much
more quantitatively.
�/.BB has also involved City
ouncil mora meaningfully in the:
'Tiudget process. Specifically, it has
fe
'n them a better picture of the
wesinvolved and a direct involve -
re fn the tradeoff process inherent
to budgeting. Potentially ZBB could
erve to very significantly increase
u; role of the legislative, branch of
m'ernment by providing more effec-
live eonitol of tho planning and re -
it rre. aIIor:aI!on process.
ZfiB also bas significant disadvan-
to
"Krt increase ref,lllp percent in Me
cost of preparing the. budget. The
rIemased Uforl, area tliMglf160 of
elail required, caused numerous
complaints. especially from Defend-
�e-nt Heads. Particularly in the rases
herr, e service is already ralher wall
nown In the City administration
and Cily Council, such complaints
rr. understandable.
The large sire• of the first service
-47-
Il:vel in most budget units. --40 to lit.)
pe.re:enl of current spe lining—cony
also havo provided an opportunity to
e.lful:lively shelter costs which
might, if listed as separate service
levels, he muni seriously questioned.
In u number of departments it Ap-
peared that overhead -type costs
wen; unduly heavy in the initial ser-
vice level, although if more time had
been available, this could have been
addressed by revisions in the pro-
posed service levels.
Another limilation is the under-
lying assumption that the specified
level of funding must be provided in
order to obtain the specified level of
service. Past experience suggests
that improvements in efficiency and
productivity may Enable a specified
level of service to ho provided even
with reduced funding levels. While
the, knoM1+ledge that reducing the cost
of each proposed cervico level en-
ables more service levels In he
funded tends to encourage economy
and stimulate productivity improve-
menl, the stimulus may not be suffi-
ciently strong to produce the desired
results. Thus, it is desirable to un-
dertake separate measures to pro-
mote efficiency and productivity In
combination with the implementa-
tion of ZBB.
111ilmington's experience with
ZBB has generally been quite posi-
tive and seems likely to lead to fur-
ther use of ZBB in Wilmington.
Combined with it variety of measures
geared to improved organization
effectiveness and economy. ZBB
appears to he making a significant
contribution. While ZBB would not
necessarily prove beneficial in every
jurisdiction, its implementation is
certainly worthy of consideration. CI
Footnotes
'P,rb•t A. felon, •• Zorn Ilw. Ilud¢r11nq:' Ileeanl
Mu i ne.. a,•, in , Na\: nw'. 14170. py. III I:1. %'•m
Item IIur111n11r,g; A Ihn, lh "I Mu111191 nonI Tnul Inn
Iwo
'F:n-.Inding ford nnP, nod 1hr npr,rdiul; +nlniilr h,
Mir 1, x'r•,c ern In,.huh d w /1111 11 ,
i,r. n..orn' hw117d.d m 51'/.l mill„n
Ter c•mnyin. n pmpucod IenOy in \c.nrr LIII6il:
Irma.•..,. deal n•nul•I inllidll n.u0 n1 .,airmM1 , x\h
Ile\\' pn.he m..
Au0u+1 1970—rn1'I:aNMI NTAI, rINANIat-29
[11 BUDGET FY '713
-48-
4TH CDBG APPLICATION PREPARATION AND SUBMISSION TIMETABLE
-4TH r.RANT-
HUD '78
It
WIURLR
NOVEMBER
DECUMDER•JAIRIANY
FEBRUARY
MARCH
APRIL
1. CO&I Prugrw
1. Develop draft pro.
December
1. Review final draft
1. Ongoing monitoring
1. Ongoing monitoring
for
posse of CHUG
1. Attend Council
of CDBG application
of DOG activities
of COBG activities
jeuertlan
gmm�l public:
reco.ut.tj.lon far
Public hearing
performance report
.. ruJza apo[
aJ vur[Isl ng
phe�City Con to
the City Council
Uecmabar 6 when
the 11
Ii. ueuapaper Jin
e. CCN meet Giga
approved
uppraveJ bade[
pew/ uJ
5 8 19,
vitt be discussed
z
p,w.cutN ,.at
and esJ Nov.S
January
Jules
c. rly." to orgwn-
b. Its if page
e nen•
paper ad
1. Review Performance
lxm imus (450)
presenting
Report Information
J. grnrr.l mvdl.
citizen pro-
Iummarlxing 3 year.
....fog. of
pasals
of C05G activity
x[iv It lea
c, discuss CCN
Race esu sit Le on
reeoumendrtlom
'
Ideas and v'oa.enb
wt publlc meet-
Ingnv. 10
a, t.e nee[In1s
seent CCN
J. present
(act. 17 G 131
It. uWlvlJuu l/
tor.ccens,.dations
to the Council
con.
November 71
' .l
[arts ..going
t.et
1. Hold publlc hearing
1. 1ov I,w CCN
December
1. Fabruary, 7 approve
to it.. 'bout
Sulu[ wbou[ City
City
ir.com(Nov. 21)rtlons
(Nov. 21)
1. I1o1d public hearing
by resolution the
completed appllca-
budvt
L Pmts sa
o. derision mating
December 6
tion and PerformanceSupt
euLar 27
b, prlerltlas
8• Adopt community
report for sub-
c. program gods
Jevelo)ment plan
and budget and sub-
mission to local,
state and federal
'Z
F
8. Set data for public
It to staff
A-95 agencies
F
hearing
December 17
G
January
u
1. Review Performance
Report January 9
2. Review 4th year
application
January 30
1. Provide usslst.nce
1. Provide support for
1. Prepare application
1. Print completed
1. APPLICATION SUB-
tu citizens lire.
CCN and Council
including
application and
MITTED TO HUD
wriu, proposal.
processing of
A. Community
performance report
APRIL 1, 1971
.
8. Schedule activities
information
Development Plan
8. APPLICATION SUB-
March 7 to
'
and define pro.
9. Draft CCN Informs.
b. Mousing Assist-
MITTED TO A-95
April 16 acceptable)
evdurea
tion for neva
ante Plan
CLEARINGHOUSES
LL3.
t CCN efforts
releases, ads, and
c. PY '78
PEBRUARY 14, 1978
is
to distribute
to ls[n Lute in.
Council presentation
Performance
(45 days before
H
forma[lan and gather
Report
[BCD aubmlasion)
'
W
rill u•n Input.
3. PERFORMANCE REPORT
4. Maintain file docu•
SUBMITTED TO IUD
wart wr citizen
AND A -9S CLEARING-
I•+r[ssiP•tlur,
HOUSES FEBRUARY 16,
.'t 'it res
1978 (10.60 days
before application)
t to
1. Receive and process
application within
4S day.
1. Submit comments
.bon mppllcatlen
to Clq
7. Receive and process
performance report
within 30 days
1. hold workshop to
1. Receive and review
1. Receive application
O
explain new regu•
performance report
and precut within
lesions and
75 days
application
' x
1
procedures
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INTRODUC , .ON
The adequacy of public facilities is a measure of a city's
ability to meet its objectives. Each city needs to assess its
level of performance and evaluate this information in light
of community desires and objectives. This report documents
existing conditions and recommends standards and policies
for performance that are to be used in the formulation of a
Community Facilities Plan.
For locations of existing community facilities, including
parks and schools, see the fold -out map in the center of
this report.
PARKS
EXISTING FACILITIES
The Iowa City park system consists of 28 parks including
forest preserves, waterfronts, neighborhood playgrounds,
cemeteries and landscaped areas, which total 193.4 hectares
(477.6 acres). Iowa City's recreational areas can be grouped
into four broad categories: City-wide facilities, community
service areas, neighborhood parks and mini -parks. - This
grouping is based on the size, location, type of space and
[lie general environment surrounding each facility. (See
Figure 1 on the center page for a list of city park facilities.)
City-wide facilities are the largest recreational areas, and
include City Park, which covers 42.6 hectares (105.2 acres),
and Hickory f. ark, which is 39.5 hectares (97.5 acres) in
size. These parks are unique in that their size allows them
to provide a wide variety of activities. The city Recreation
Center—with 13,470 square meters (144,838 square feet)
Of floor area on two levels—can also be considered a city-
wide facility because its programs and activities draw
individuals from all areas of the community.
Community parks are more limited than city-wide facilities
in both size and scope of activities although their service
area covers several neighborhoods. There are six community
parks ranging in size from 2 hectares (5 acres) to 26
hectares 164 acres).
Neighborhood parks serve areas of the city within a one,
kilometer radius (0.6 mile). The park system includes twelve
neighborhood parks ranging in size from 0.6 to 5.7 hectares
(1.4 to 14 acres).
Mini -parks vary in size from a fraction of a hectare to 2.6
hectares (6.5 acres). Most mini -parks are located within
developed residential areas, and provide open space,
buffering, and tot lots.
Special-purpose, open -space areas include the cemetery
and landscaped areas. Oakland Cemetery is 13.4 hectares
(33 acres) in area and is located in the northeast section
Of Iowa City. Landscaped areas are located in roadway
medians and in other Publicly owner) land.
FIGURE 2
PARK DEVELOPMENT STANDARDS
PARK TYPE
SERVICE AREA
LOCATION
SIZE RATIO
SIZE RANGE
TYPICAL
FACILITIES
PLAYGROUND
Maximum radius:
500 meters
In a pedestrian
Contained in
500 sq. maters
Play apparatus play -
(0.3 mile).
environment.
neighborhood
to hectares
field, balllirld, brnrhes
park ratio.
(50,000 sq. feet
for adults accompany -
to 5acres).
inq vonnq children
NEIGHBOR.
HOOD
Maximum radius:
Ikilometer
Centered in the
2hectares
2t161`ectmes
Plav antmm�ls h;dl
(0.6 mile).
neighborhood it
serves, adjoining
I 9
(5 acres) per
p
1,000 potential
15 to1�acresl.
courts,arldtare-n
elementary school.
population.
including passive arca
(shaded benches) and
rl:anr. arca Ihorseshnes,
shuffleboarri. etc. I.
COMMUNITY
Maximum radius:
2.5 kilometers
Centered in the
4 hectares
6010100 to 40
P II
0.6miles).
Communityit
serves or adjoining
(10acres)prr
1,000 potential
acres
150 to 100 acres).
marts, Irhllfields, swim-
arts, Iamnlds, s
junior and senior
population.
ming pool, community
high schools.
center, ice skating rink,
picnic areas, adult areas.
mnum slurfv arra.
CITY-WIDE
Within walking or
driving distance
In one or more
One, park Per
40 hectares
ON'.n lawn and wonder)
for all urban
areas of the city,
depending upon
50,000 people,
(100 acres)
areas .scrnir.rlrivrs,
inhabitants.
natural features.
minimum.
lakes, Ponds, areas for
gan1C5 8114 Sper15.
May Include golf
course, ;nbonaunhs,
riding trails, swinhtninq
pool, play alwalalas.
DEVELOPMENT CRITERIA
Because Iowa City is a diverse community, its residents
have a wide variety of recreational needs and interests. In
order to provide an optimum range of recreational opportu-
nities, the standards presented in Figure 2 have been for-
mulated for the development of park facilities, based on the
experiences of other park and recreation systems.
These standards should be used as guidelines for planning
recreational areas. If applied in an indiscriminate manner,
they can result in a poorly located facility relative to the
social and physical characteristics of the area.
OPEN SPACE. When properly situated, both public and
private open spaces serve many functions. For example,
they preserve areas of natural beauty, and provide needed
contrast to extensive urban development. Open spaces
also offer extensive opportunities for recreation, such as
waterfronts, public access for boating and fishing, and
places to walk, hike, or bicycle.
SCHOOL. Schools offer many advantages as sites for
playground expansion. Their usually central location in the
neighborhood provides easy access for all residents. In
addition, because schools already have gymnasiums and
other capital facilities, recreation programs can be developed
in off -school hours at relatively low cost.
RALSTON CREEK. The Ralston Creek flood detention
sites offer a unique opportunity for the development of
joint -use facilities. These sites are suitable for both the
development of active recreation areas and the preservation
of natural open space.
CEMETERIES. Both public and private cemeteries provide
indirect benefits to a community, if they are properly located.
The open space of a cemetery provides relief from continu-
ous urban development and wildlife habitat. Once a ceme-
tery becomes inactive, it may also be used for some forms
of passive recreation, such as bicycling. Cemeteries should
be located in areas inappropriate for more intensive develop-
ment. Special care is advisable in locating cemeteries,
since changing their use is extremely difficult.
MAXIMIZING BENEFIT. Parks, recreational areas and
open spaces which are located so that their exposure to
public activity is maximized offer the greatest number of
benefits to the public. When these facilities border s•reets,
they provide relief from continuous urban development,
and expand the natural effect at transitions between open
space and other uses. These benefits are greater per unit
area of open space when open space areas are linear and
have irregular boundaries.
SCHOOLS
EXISTING PUBLIC SCHOOL FACILITIES
The Iowa City community school district includes the local
public schools in Iowa City, University Heights, Coralville
and a large part of East and West Lucas Township. There
are 21 school buildings in the system: 16 elementary schools,
3 junior high schools and 2 high schools. (Ser, Figure 3 on
the center page.) In response to population shifts, redistrict-
ing, and such, the district maintains 33 portable classrooms
which can be used at those schools experiencing an increase
in enrollment beyond immediate capacity.
M FIGURE4
IOWA CITY COMMUNITY SCHOOL DISTRICT:
PUBLIC SCHOOL CENSUS
1960-1976
PERSONS
IT"WOYUN
10-
5.16 Year, old
e
6
4------ '0-4 Years ol0
2-
19-20 Ysur, old
v— -----
60' 62 64• 66' 68• 90 72 H 96
YEAR
•YI,U I.,.e.
'anw, dw'en a w•.oa, ,load ro su,.<i
'r .e/rw, vm a slaw •,
•gniw dsror6[l>ary, sx,vn
The public school census for 1976 shows a total count of
14,125 students in the district. This represents an overall
decrease of 4.8 percent or 700 students. The Iowa City
portion of the district (including special education) totals
8,819 students. This represents an overall decrease of 2.23
percent from the 1975 enrollment of slightly over 9,000.
This continues a five-year trend which has seen an overall
decrease of 3.28 percent since 1972.
EXISTING PRIVATE SCHOOL FACILITIES
In addition to the public schools there are two Catholic
supported schools in Iowa City. St. Patrick's Elementary
School has an enrollment of 228 students, only 12 short of
its capacity. The building was constructed in 1921 and is
located on a 0.6 -hectare (1.5 -acre) site near the central
business district. Regina Junior -Senior High School has a
total enrollment of 484 and is situated on a 32 -hectare 180.
acre) site. Facilities include football and baseball fields,
hiking areas, open spaces and ample parking on site.
DEVELOPMENT CRITERIA
The school today is no longer merely a focal point for edu.
cation. It continues to evolve as the primary focus for all
neighborhood and community activities. It is, therefore,
important that the social and recreational as well as educa.
tional functions of the school be considered in both its
location and design.
The recommended standards for site size, enrollment, and
walking distance are intended to be guidelines and not abso.
lute standards for Ilia devrlopment of school sites. Flexibility
in their application to variable, social and physical character
istics of the community is essential for good planning. ISee
Figure 5 on ilia following page.)
FIGURE 1
IOWA CITY PARKS:
LOCATION, SIZE AND FACILITIES
1977
SIZE OF SITE
PARK
LOCATION
FACILITIES
HECTARES
ACRES
CITY-WIDE PARKS
82.1
202.7
City
Park Road and Iowa River
42.6
105.2
CD EFG H I J KL
MNOPQRS
Hickory Hill
Davenport Street and 7th Avenue
39.5
97.5
B IJ K L
COMMUNITY PARKS
82.5
203.8
Mercer, Leroy S.
Bradford Drive and Dover Street
11.0
27.1
CDHIJKLNQR
Mesquakie
S. Riverside Drive
25.9
64.0
ATU
Terrill Mill
N. Dubuque Street and Taft Speedway
7.1
17.6
A EJ K
Sturgis Ferry
S. Riverside Drive
15.3
37.9
AE
West Landfill
2.5 kilometers (4 miles)
12.2
30.0
A
west of Mormon Trek Road
Willow Creek
West Benton Street
11.0
27.2
BJKN
NEIGHBORHOOD PARKS AND PLAYGROUNDS
21.7
53.6
Brookland
Myrtle and Melrose Avenues
1.5
3.8
K LN
College Green
Washington and Dodge Streets
1.0
2.4
H K N S
Court Hill
2825 Friendship Street
3.5
8.6
LNRS
Creekside
Muscatine and 5th Avenues
0.9
2.3
I LN RS
Elm Grove
Benton and Clinton Streets
0.6
1.4
I N QR
Fairmeadows
Western Road
2.0
4.9
HKNR
Happy Hollow
Brown and Governor Streets
1.3
3.3
H I LN R
North Market Square
Fairchild and Johnson Streets
0.6
1.5
KLNS
Oak Grove
Page Street
0.6
1.6
J K NS
Pheasant Hill
Green Mountain Drive
1.3
3.3
N K
Villa
Westgate Street
2.6
6.5
AKLN
Wetherby
Taylor Drive
5.7
14.0
K N R V
MINI -PARKS AND PASSIVE PICNIC AREAS
7.1
17.5
Black Springs Circle
Dill and Park Streets
0.4
0.9
AK
Crandic
Rocky Shore Drive and Dill Street
2.1
5.2
EJ K L
Glendale
Glendale Road and E. Ralston Creek
0.3
0.8
AN
Highland
Highland Avenue and Keokuk Street
0.2
0.4
K N
1-80 Strip
East of American College Testing
2.6
6.5
A
Reno
Reno Street
0.4
1.0
HLN
Strob
East of Streb Industrial Park
0.9
2.3
A
Tower Court
Tower Court
0.2
OA
K N
A open space G ice skating M enclosed shelters R ball diamonds
B nature trails H drinking watel N playground oNlipment S baskothall
C hiketrails I reslrooms O kidoiendes T mndelairplano area
swlelming .1 'pill; p hr........ I1111'1{ U IIIr,10'rycle trails
E lishmg K wcnic laha•s O mnnl'• V cunvnunity gnrdenr.
F boating L picnic shelters
0 FIGURE 3 10
IOWA CITY COMMUNITY SCHOOL DISTRICT:
PUBLIC SCHOOL LOCATION, SIZE AND ENROLLMENT
1976
FIGURE 5
SCHOOL DEVELOPMENT STANDARDS
SIZE OF SITE
MAXIMUM
SCHOOLTYPE
ENROLLMENT
fha = hectare; a = acre)
KILOMETERS
ENROLLMENT
ENROLLMENT
SCHOOL
LOCATION
WITHAR
1/9/76
10
4.0 he (10 a) per first 500 students, plus
HECTARES
ACRES
TEMPORARIES
0.4 he 1 1 a) per 100 additional students.
ELEMENTARY
Central
501 -6th Street, Coralville
3.0
7.5
450
392
Hills
Hills, Iowa
2.8
6.8
300
234
Hoover
2200 Court Street
2.4
6.0
500
466
Horn
600KoserAvenue
3.2
8.0
400
291
Kirkwood
1401 -9th Street, Coralville
7.5
18.5
375
295
Lemme
3100 Washington Street
3.2
8.0
450-490
327
Lincoln
300 Teeters Court
2.0
5.0
200
201
Longfellow
1130 Seymour Avenue
4.1
10.0
418
297
Lucas
830 Southlawn Drive
3.6
9.0
500
456
Mann
521 North Dodge Street
1.6
4.0
325
252
Penn
North Liberty, Iowa
4.1
10.0
360-365
322
Roosevelt
724 West Benton Street
2.4
6.0
376
342
Sabin
509 South Dubuque Street
0.6
1.5
260
225
Shimek
1400 Grissell Place
6.5
16.0
240-250
204
Twain
1355 DeForest Avenue
4.1
10.0
475
417
Wood
2350 Sycamore Street
3.3
8.2
450
433
JUNIOR HIGH
Central
121 North Johnson Street
1.1
2.5
350
424
Northwest
1507 -8th Street, Coralville
8.1
20.0
825
829
Southeast
2501 Bradford Drive
10.5
26.0
702
730
HIGH
City High
1900 Morningside Drive
14.2
35.0
850
919
West High
2901 Melrose Avenue
32.4
80.0
1,200
965
FIGURE 5
SCHOOL DEVELOPMENT STANDARDS
MAXIMUM WALKING DISTANCE
SIZE OF SITE
SCHOOLTYPE
ENROLLMENT
fha = hectare; a = acre)
KILOMETERS
MILES
MINUTES
ELEMENTARY
450900
1.0
0.6
10
4.0 he (10 a) per first 500 students, plus
0.4 he 1 1 a) per 100 additional students.
JUNIOR HIGH
500-1000
1.02.5
0.6-1.6
30
8.0 he (20 a) per first 500 students, plus
0.4 he (10a) per 100 additional students.
HIGH
10002000
').55.0
1.6 3.1
30
12.0 he (30 al per first 1000 students, plus
0.4 he 1 1 a) per 100 additional students.
COMMUNITY
PARKS
SCHOOLS
FACILITIES
1 Black Springs Circle
2 Brookland
3 City
IOWA CITY
8
1977
O ��
CITY
10 WA
A AIRPORT
B CIVIC CENTER
Ci .FIRE STATION-CENTRAL
D FIRE STATION-EASTSIDE
E FIRE STATION-WESTSIDE
F LIBRARY
G POLICE STATION
H RECREATION CENTER
® CEMETERIES
PARKS
1 1 POTENTIAL RALSTON CREEK
L� FLOOD CONTROL PROJECT
SCHOOLS
4 College Green
5 Court Hill
6 Crandic
7 Creekside
a Elm Grove
9 Fairmeadows
10 Glendale
11 Happy Hollow
12 Hickory Hill
13 Highland
14 1-60 Strip
15 Mercer, Leroy S.
16 Mesquakio
17 North Market Square
19 Phe Grove
1g Oak
asant HIII
20 Reno Street
21 Strob
22 StuTerrill MillFerry
73 Terrill Mill
24 Tower Court
25 Villa
26 West Landfill
Wetherby
26 Willow Crook
a Central Junior High
b City High
c Hoover Elementary
d Horn Elementary
o Lemma Elementary
f Lincoln Elementary
g Longfellow Elementary
h Lucas Elementary
I Mann Elementary
j Regina High
k Roosevelt Elementary
I Sabin Elementary
m St. Patrick Elementary
n Shimok Elementary
o Southeast Junior High
g
P West Elementary
r Woo High
Wood Elementary
CORALVILLE
as Central Elementary
bb Kirkwood Elementary
cc Northwest Junior High
O lOOOi
Sa27
esiz!2
0 610 m
W,
n
[` 23
0
s
1
FIGURE B0
IOWA CITY AIRPORT RUNWAY DATA
1977
RUNWAY
LENGTH
WIDTH
NUMBER
METERS
FEET
METERS
FEET
06/24
1219
3998
46
150
12/30
1189
3900
46
150
17/35
1310
4299
46
150
All three runways are concrete, with
minimal illumination.
AIRPORT
EXISTING FACILITIES
The Iowa City Municipal Airport is located in the southwest
section of the city. Its elevation is 201.5 meters (661 feet)
above sea level, and to the east, south and west it is sur-
rounded by level ground of similar elevation. However, to
the north hills rise more than 30 meters (98.4 feet) within a
kilometer (0.6 mile). The site covers 196 hectares (485
acres) and was originally established in 1918. Air navigation
is aided by VOR.
While no commercial airlines serve Iowa City through this
airport, it is used quite extensively by private planes, as well
as those of local commercial and industrial interests. A
local flying service also operates out of the municipal airport.
Access to commercial airline service is at the Cedar Rapids
Airport located about 32 kilometers (20 miles) north of Iowa
City. A limosine service operates between Iowa City and
this airport.
DEVELOPMENT CRITERIA
Airports are extensive users of land, and their presence
vitally affects the character of development for at large area
outside their boundaries. Because airports must be located
and developed both in relation to other elements of the city
and in relation to air space, the federal government (Federal
Aviation Administration, FAA) is actively involved in the
process of airport system planning.
Regulation and control of land uses in airport vicinities can
moderate harmful side effects and maximize the safety of
landing and takeoffs. It is essential to carefully plan for land
uses in the vicinity of airports to assure safety and
compatibility.
When aircraft take off or land, they gain or lose altitude
very slowly compared to their forward speed. Because of
this characteristic, they need space at the ends of the landing
strips known as "approach zones", over which they may
safely gain or lose altitude. The approach zone should be
designated for approximately 2 kilometers 11.2 miles) from
the end of the runway. (See. Figure 9.) Land uses involving
dense concentration of people should not be located
beneath this path. In the approach zone, 1 kilometer (0.6
mile) should be free of obstructions that exceed a height of
1 meter (3.28 feet) above the end of the landing strip for
each 20 meters (65.6 feet) of distance from the end of the
strip. (Recent FAA regulations indicate runway 35 is an
instrument approach runway with a 34:1 approach surface.)
The most critical portion of the approach zone is the first
300 meters (984 feet) adjacent to the runway. This area,
known as the "clear zone", is the innermost portion of the
approach zone. FAA standards recommend the purchase
of land in this zone. If this is not possible, sufficient control
over the land should be acquired to allow for removal of
existing obstructions and to control the future use of the
land and any construction which would interfere with
airport operations.
FIGURE9
IOWA CITY AIRPORT APPROACH ZONES
(STANDARDS RECOMMENDED BY CITY OF IOWA CITYI
Prepared for the Comprehensive. Plan Coordinating Committee:
Richard Blum (Chairman), Part Cain, Carol deProsse, Jane
Jakobsen, Mary Neuhauser, Robert Ogesen, David Perrot, Juanita
Vetter.
By the Department of Community Development, Dennis R. Kraft,
Director, City o1 Iowa City, Iowa 52240; Rick Geshwiler, Senior
Planner, Douglas Boothroy. Assistant Planner; William Keating,
Assistant Planner; David Lundquist, Assistant Planner; Jorge
Rendon, Planning Technician; Joanne Somsky, Planning Tech-
nician (Graphics/Layout Editor); Debbe Simpkins, Senior Clerk -
Typist.
Pined on 10096 rucycled paper. August, 1977
•
LEC E. nTZaInn OMS
FRANCIS nTZOIneONS
HAROLD W.VINITC
RICHARD J. MEYER
LAw OrrICOD Or
FYTZGIHE0NE3 BROTHERS
i'. ❑. Sox 496
108 NORTH SEVENTH STR :CT
EBTHORVILLE, IOww
CIJ]4
October 7, 1977
City Clerk
Civic Center
410 E. Washington Street
Iowa City, Iowa 52240
•
The enclosed letter is being forwarded for the
attention of the Iowa City Council. I have sent a
copy to Mayor Mary Neuhauser.
LEF:ams
Enclosure
Yours very truly,
/ r
Leo E. Fitzgibbons
✓?6 '9t
Tu.mmanu
MCA 112-]62-]$I5
okIDD
OCT 10 i977
ACiU!+_ ST0LFU�
CITY CLERK
rI
LED C. FITIOIORDNO
FRANCIO FITEOInuoNu
MMMMUMMEd
HAROLD W. WHITE
RICHARD J. MOTOR
LAW arnooa or
n=3z SEONS BROTHERS
P. C. BOX aoa
IUO NuHl'I1 SEVENTH vTHLLT
E8THMRVMLM, IOWA
01304
October 5, 1977
City Council of Iowa City
Civic Center
910 E. Washington Street
Iowa City, IA 52290
0
1'ELLRIIOIIL
ARCA 712-362J215
OCT 1 O;`)77 !'
ABBIE STOLFL,
CITY CLERK
The undersigned represents the owners of the Strub building part-
nership which partnership owns the Strub Building adjacent to Parcel
No. 81-1 which was recently offered for sale by the City of Iowa City.
The owners of the Strub Building partnership wish to call the Iowa
City Council's attention to the fact that the Strub Building relies
for its lateral support upon substantially all of Parcel No. 81-1. For
details on this reference is made to the Shive-Hattery Engineering re-
port dated August 18, 1975, which was a part of the bid packet. In
that report the engineers pointed out that the foundation of the Strub
Building extends well into and encompasses a great part of Parcel No.
81-1.
The concern of the owners of the Strub Building is that the City
is going to require the construction of some kind of a building on
Parcel No. 81-1. When the City as a governing body makes such a re-
quirement, and conveys the property to a person required to build on
Parcel, it is suggested that the City require proof of adequate financial
responsibility on the part of its purchaser and his contractor, so as to
assure that when the purchaser undertakes the construction project, the
owners of the Strub Building should be fully protected from any damage
to the Strub Building, because it receives its lateral support from
Parcel No. 81-1. The owners of the Strub Building should be fully pro-
tected against any such damage either by the financial responsibility
of the perchaser, by the financial responsibility of any contractor
employed by the purchaser, or by liability insurance policies covering
the possible damage.
The point we seek to make is this. If the City of Iowa City requires
a construction project on Parcel No. 81-1, knowing of the lateral support
problem, then it appears that the City itself would be responsible for any
future damage, unless proper steps are taken and safeguards are made to
assure that there will be no damage to the Strub Building.
City Council of Iowa City
October 5, 1977
Page 2
We will be willing to discuss this matter with any representative
of the City at any time. The purpose of this letter is to be certain
that the City Council is aware of the problems set forth in the Shive-
Hattery Engineering letter. If it is, I am sure the Council will agree
that such safeguards will have to be a necessary and integral part of
any arrangement between the City and any purchaser. Otherwise it ap-
pears to us that the City would be responsible and liable for any damage
in view of its mandates and requirement that its vendee erect a struc-
ture on Parcel No. 81-1.
Yours very truly, /
Leo E. Fitzgibbons
LEF:ams
•City of Iowa City
MEMORANDUM
DATE: October 6, 1977
TO: All Employees .11
FROM: City Manager el
RE: Offensive Conduct
In the last few months remarks have been attributed to City employees
which include the word, "nigger" and other similar derogatory words or
phrases. In each situation an individual has indicated hearing the
remark and the other person has denied making it.
While the City is unable to legislate changes in attitude, it can take
measures to correct certain acts by employees. Please consider this a
written warning that use of language which is commonly known to be deroga-
tory and offensive toward racial, ethnic, or religious groups or to women
will not be tolerated. If reports are received of employees using such
derogatory language, disciplinary action will be taken.
3875
* City of Iowa Ci#
MEMORANDUM
DATE: October 10, 1977
TO: Neal Berlin and City Council
FROM: Dick Plastino, Director of Public Works
RE: Status of traffic signal installations
Project
Highway 6/l/218
Project
Keokuk and Highway 6
Sycamore and Highway 6
Riverside and Benton
East-West Couplets
N1 and #2
Project
Gilbert, Bowery, and
Prentiss
(Cost - $30,000)
Points to Consider -
FY77 Projects
Engineering Construction
Time of Completion
100%
0%
Spring,
1978
FY78 Projects
Engineering Construction
Time of Completion
0%
0%
Spring,
1979
70%
0%
Spring,
1978
10%
0%
Spring,
1979
100%
0%
Spring,
1978
Suggested Project
Engineering Construction
0%
0%
Time of Completion
Fall, 1978
1. Keokuk and Highway 6 was moved up one year in last budget cycle to
FY78.
2. Five intersections are now programmed and are in varying states of
completion.
3. There is a limited amount of benefit in adding new intersections
to a work schedule without deleting or rescheduling other inter-
sections. There is one engineer working on traffic signals and they
will be done in a certain length of time regardless of whether five
intersections or ten intersections are scheduled. In other words,
adding another intersection to the list drops all other intersections
back an unknown but proportional amount of time.
0
_2_ •
Council has formally recognized the Gilbert, Bowery, and Prentiss
intersection as being dangerous. Council specifically authorized
two crosswalk guards and installation of flashing speed limit signs
in an effort to alleviate the problem until the project could be done
during its properly programmed FY80 Budget year.
5. If Council wishes Gilbert, Bowery, and Prentiss intersection to be
done by the fall of 1918 authorization should now be given to go
ahead and order signal equipment. Delivery times for signal equipment
run three to six months. It is also suggested that this particular
project be done by consultants and that $6000 be added to the 30,000
budget to allow for engineering and inspection.
This pattern of crisis response to well known problems is not altogether
beneficial. Other projects suffer and work schedules are disrupted with
resultant loss of time and efficiency.
0 0 in/1nm
CHANGES TO 9.30
HOUSING OCCUPANCY AND MAINTENANCE CODE
9.30.1.0
Simplify end of sentence to: City of Iowa City irrespective of
the date of construction.
9.30.1.D
Third line: add "or 'this Chapter"' to the end of the sentence.
9.30.2
Additional definition spaced alphabetically between Communal and
Dining Room:
Court shall mean an open unoccupied space, other than a yard, on
t—Fe same lot with a dwelling. A court not extending to the
street or front or rear yard is an inner court. A court
extending to the street or front yard or rear yard is an outer
court.
Kitchen Sink - punctuation, line two: washing eating ."
Operator - line three, additional comment: . . . premises (for rooming
houses, see Rooming House Operator).
Roomer - second line: "family of the operator ." should read
"family of the rooming house operator ."
Additional definition spaced alphabetically between Rooming House
and Rooming Unit:
Rloomin House Operator shall mean any person who rents to another or
w—ho has custody or control of a building, or part thereof, in which
hes resides and in which rooming units are let.
he-
Tempp�orary Ho�usinE - additional word: " . . . shall mean any tent,
trailer, or otFer structure used for . . . ." should read shall
mean any tent, trailer, motor home, . . . ."
Toilet - spelling error.
9.30.3.A
Third line: " . . . the condition of dwellings, dwelling units, rooming
units, trailers, ." should read " . . . the conditions of dwellings,
dwelling units, rooming units, mobile homes, . . . ."
9.30.3.0
Line two: change "consentual" to "consensual".
9.30.3.1)
Line six: ". . . any person or person ." should read ". any
person or persons . . . ."
9.30.3.E
Lines four and six: " . Housing Inspector his/her authorized . . . ."
should read ". . . Housing Inspector or his/her authorized . . "
" Pursuant to this Code." should read ". pursuant to this
Chapter."
9.30.3.G
First line: "Whenver the Inspector of Buildings ." should read
"Whenever the Housing Inspector . . . ."
397
9.30.3.H
9.30.3.J.1
9.30.4.G
9.30.4.I.e
9.30.5. D.7
9.30.5.G.3.b
9.30.5.H.1
9.30.5.H.2
9.30.5.H.4
9.30.6.0
9.30.6.F.2
9.30.6.F.3
0 0
Additional material to this section is as follows:
The Board may modify any notice affecting the following subsections
of this Chapter:
9.30.4.)
9.30.10.0
9.30.5.A
9.30.11.A
9.30.5.8
9.30.11.8
9.30.5.0
9.30.11.0
9.30.5.D
9.30.11.D
9.30.6.D
9.30.11.E
9.30.9.II
9.30.11.F
9.30.10.5
9.30.11.G
9.30.11.H
so as to authorize a variance from the provisions of this Chapter
when, because of special conditions, a literal enforcement of the
provision of this Chapter will result in practical difficulty or
unnecessary hardship; provided, that the spirit of this Chapter will
be observed, safety and welfare secured, and substantial justice
done. If the Board sustains or modifies such notice, it shall be
deemed to be an order and the owner, operator, or occupant, as the
case may require, shall comply with all provisions of such order
within a reasonable period of time as determined by said Board.
Hearing - line nine: . shall be regarding as an order." should
read ". . shall be regarded as an order."
Water Heating Facilities Required - line eight: twenty (120)
degrees Fahrenheit." should read ". . . twenty (120) degrees
Fahrenheit (48° C)."
Additional item - original "e" now "f", original "f" now "9"; "e"
should read as follows:
All stairs and steps shall have a riser height of not more than
eight (8) inches and a tread width of not less than nine (9) inches.
Line two - typographical error: "shart" should read "shaft".
Line two: and every other opening to be a cellar or "
should read ". and every other opening to a cellar or ."
Line two, spelling error: "safet" should read "safe".
Line three, spelling error: "egree" should read "egress".
First line: "No fuel burning heater shall . ." should read
"No fuel burning furnace shall " Add at end of paragraph:
"Water heaters are prohibited in bathrooms or sleeping rooms."
Line three, spelling error: "ceet" should read "feet".
Line two: sizes are required ." should read ". sizes
as required ."
Revise to conform with other sections: "Said rooms shall conform to
ceiling height requirements as set forth in 9.30.6.D."
9.30.7.A.2 Line three, word omitted: (4) inches and ." should read
(4) inches high and .11
9.30.7.0 Line two: change "outbuildings" to "accessory structures".
9.30.7.D Revised section for detailed standards; should read:
Gradin Draina e, and Landsca in of Premises. Every premises shall
e grade and rained so no stagnant water wi I accumulate or stand
on the premises, and every premises shall be continuously maintained
in a sanitary, erosion -free, and dust -free condition by suitable
landscaping with grass, trees, shrubs, or other planted ground
cover, or by paving with asphalt, concrete, or by such other suitable
means as shall be approved by the inspector of buildings. Where a
premises is occupied or shared by less than three (3) dwelling units,
the continued maintenance of the premises in the above condition shall
also be the responsibility fo the occupants. Any person who violates
this section shall, for each violation, forfeit not less than
twenty-five dollars ($25.00) nor more than one hundred dollars (S100.00).
9.30.1.E
Line two: change "outbuildings" to "accessory structures".
9.30.7.F
Line two, spelling error: "delapidation" should read "dilapidation".
9.30.2.H.1
Line two, word omitted: ". through flow . . . ." should read
". through back flow . ."
9.30.7.N
Line two, spelling error: "therof" should read "thereof".
9.30.7.0
Line two, word omitted: . rooming unit it ." should read
". rooming unit unless it ."
9.30.7
Add new section "Q": Maintenance of Fences. Every fence shall be
kept in a reasonably good state of maintenance and repair or shall
be removed.
9.30.7
Add new section "R": Maintenance ofAccessory Structures. Every
foundation, exterior wa , roofwin owd ,exterior Uoor,—Uasement
hatchway, and every other entrance -way of every accessory structure
shall be so maintained as to prevent the structure from becoming a
harborage for rats and shall be kept in a reasonably good state of
repair.
9.30.8.0
Line eight: change "ratproof" to "rodent proof".
9.30.9.A
Line three: change "operator" to "rooming house operator". The
latter term is a formal definition added to section 9.30.2. This
change occurs throughout this section:
9.30.9.0 - line one
9.30.9.1) - lines twelve and fifteen
9.30.9.F - line two
9.30.9.1 - line six
9.30.9.11 - line ten
9.30.9.0 - line three
9.30.9.Y - lines one and three
9.30.9.08 - line three
9.30.9.DD - lines one and five
0 0
9.30.9.0 - line four
9.30.9.E - lines one, four, and nine
9.30.9.G - line five
9.30.9.L - lines five and seven
9.30.9.N - line four
9.30.9.X - line one
9.30.9.AA - lines one and nine
9.30.9.CC - line one
9.30.9.A
Line one, additional clarification: ". . . unless he holds ."
should read ". . . unless he or she is an occupant of said rooming
house and holds ."
9.30.9.0
Line six, include fee schedule: omit "set by Resolution of the
City Council of Iowa City, Iowa." and add "the amount of which shall
be twenty-five dollars ($25.00) for a Type I Rooming House Permit
and forty dollars ($40.00) for a Type II Rooming House Permit."
9.30.9.E
Line four, redundant phrasing: should read "No rooming house operator
shall at any time allow a greater number of persons to occupy any
individual rooming unit than the maximum number of persons listed
on the occupancy record cards for each such unit."
9.30.9.F
Line three, spelling error: "Inspectin" should read "Inspection".
9.30.9.K
Line one, spelling error: "who" should read "whose".
9.30.9.0
Line six, spelling error: "any" should read "and".
Line seven, specify full coding: "V" and "W" should read "9.30.9.V"
and "9.30.9.W" respectively.
9.30.9.GG
Additional item - original "GG" now "HH", original "HH" now "II", etc.;
"GG" should read as follows:
Early Warnin Fire Detection System. Every dwelling and rooming unit
in rooming ouses s a e provided with a smoke detector as approved
by the Fire Marshal. The detector shall be mounted on the ceiling
or wall at a point centrally located in the corridor or area giving
access to rooms used for sleeping purposes. Where sleeping rooms
are on an upper level, the detector shall be placed at the center
of the ceiling directly above the stairway. All detectors shall
be located within 12 inches of the ceiling. Care shall be exercised
to insure that the installation will not interfere with the operating
characteristics of the detector. When actuated, the detector shall
provide an alarm in the dwelling unit or rooming unit.
9.30.9.GG (HH) Line three, spelling error: "pirpose" should read "purpose".
9.30.9.HH (II) Line three: omit "to all occupants of the building"; should read
shall be easily accessible and shall be kept ."
9.30.10.0 Line six, include fee schedule: omit "set by Resolution of the
City Council of Iowa City, Iowa." and add "the amount of which shall
be fifteen dollars ($15.00) for a multiple dwelling containing
three (3) dwelling units plus ten dollars ($10.00) for each
additional dwelling unit contained in said dwelling".
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9.30.10.E
Line seven, omit erroneous sentence: "No operator shall at any time
permit any person to occupy any dwelling unit."
9.30.10.K
Line nine, spelling error: "to been" should read "to be".
9.30.10.L
Entire section is covered in 9.30.6.A and should be omitted. Subse-
quent sections will be receded accordingly ("M" becomes "L", "N"
becomes "M", etc.).
9.30.10.P
Lines two and three, omit undefined terms: omit "grounds" and
"uncontrolled"; should read ". . maintain the premises in an
orderly manner and free of materials which are hazardous ."
9.30.10.Q
Line one, spelling error: "not" should read "no".
9.30.10.T
Line three, omit unneeded phrase: "to all occupants of the building";
should read ". . . easily accessible and shall be kept .
9.30.10.V
Add phrase for clarity: "not easily accessible to children"; should
read "Multiple dwellings shall provide a facility not easily
accessible to children for the safe storage of drugs and household
poisons in every dwelling unit."
9.30.10.X
Additional item, not previously spoken to:
Early Wa�rnin _Fire Protection S,Xstems. Every dwelling unit within a
multiple dwelling shall be provided with smoke detectors as
approved by the Fire Marshal. Detectors shall be mounted on the
ceiling or wall at a point centrally located in the corridor or
area giving access to rooms used for sleeping purposes. In an
efficiency dwelling unit, the detector shall be centrally located
on the ceiling of the main room. Where sleeping rooms are on an
upper level, the detector shall be placed at the center of the
ceiling directly above the stairway. All detectors shall be
located within 12 inches of the ceiling. Care shall be exercised
to insure that the installation will not interfere with the
operating characteristics of the detector. When actuated, the
detector shall provide an alarm in the dwelling unit.
The following three sections appear in the Rooming House chapter. They should also
be included in the Multiple Dwellings chapter as follows:
9.30.10.Y Sanitary Maintenance. The operator of every multiple dwelling shall
be respons b e or the sanitary maintenance of all walls, floors,
and ceilings and for maintenance of a sanitary condition in every
other part of the multiple dwelling.
9.30.10.Z Garbaq i sposal or Storage. Adequate garbage and rubbish disposal
facilities or storage containers whose type and location are
approved shall be supplied by the multiple dwelling operator. The
operator shall be responsible for the disposal of all garbane in a
clean and sanitary manner through the use of approved mechanical
equipment or by placing it in the required containers.
9.30.10.AA Han1'915creens, Storm ors, Storm Windows. The upvra tur of a
multiple Swelling steal l Dobe responsible for hanging all screens and
double or storm doors and windows whenever the same are required
under the provisions of this ordinance or of any rule or regulation
adopted pursuant thereto, except where the owner has agreed to
supply such service. Screens shall be hung not later than the
first day of June each year.
9.30.12.E Line two, spelling error: "unsed" should read "used".
Line three, spelling error: "approved" should read "approval".
Line five, spelling error: "wherever" should read "whenever".
9.30.13.A Line three, spelling error: "on" should read "or" (the bringing or
the threat of bringing).
Study'Material for the August 25 DraO
.of Chapter 9.30 Housing Occupancy and Maintenance Code
The material contained herein shall attempt to deal with the August 25 draft of
Chapter 9.30 page by page and compare the changes between this draft and the
previous draft sent to Council. In addition we shall present the staff position
regarding suggested changes and the anticipated impact of this Code in actual
practice. Hopefully, a careful reading of the code along with this draft report
shall help gain the understanding and clarification necessary to assure a proper
and expeditious review of this ordinance.
Page 1 - No change.
Page 2 - Adjoining grade - Defined to clarify the required window require-
ments in basement occupancies (See Basement below).
Approved - Define to clarify role of staff in determining a level
of acceptance, especially in workmanship or building materials.
Basement - Defined to identify types of construction intended for
habitable living area. Previous drafts did not segregate cellars
from basements and left some vagueness as to how to treat walk-
out ranches or split foyers.
Bath - Defined to minimize text in code.
Bedroom - Defined to emphasize that the use of the room by the
occupant dictates the label, such as the presence of a bed makes
the room a bedroom, etc., definition further requires a door to
ensure privacy.
Cellar - Used to define physical below grade areas that are non-
e habitable.
Page 3 - Communal - Defined to permit shared or common areas in rooming
house, for example; communal kitchen, communal living areas.
Dining Room,- Defined to label a room used solely for eating meals,
but different than a kitchen.
Dwelling - Definition expanded to exclude temporary housing (such
as Winnebago's, tents, campers, etc.).
Page 4 - Family - Definition significantly changed limiting definition of
'
family to blood, marriage, or adoption. Modified further to include
foster children. Therefore, definition of family includes indivi-
duals residing.as; a one person family, the nuclear family.or the
extended family. Anyone residing in a household other than family,
as defined herein, shall be considered a roomer.
387
7
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Garbage - Definition expanded to bring it into accord with the
City ordinances affecting refuse.
Habitable Room - Definition modified to delete recreation rooms
from the listing_of excluded areas.
Kitchen - Definition shortened to define area of cooking or pre-
paration of meals. Former drafts included basic equipment and
are now covered under basic facilities in later chapters.
Kitchenette - Item defined to reconcile State Code 413.
Kitchen Sink - Defined so as to require a sink of a certain size
and not permit small sinks such as bar sinks or lavatory basins
being substituted in kitchens.
Page S - Lavatory Basin - Defined to identify a specific piece of equip-
ment separate and distinct from other pieces of equipment such as
a kitchen sink.
Living Room - Defined to help label a room by use rather than
architecture.
Occupant - Definition modified to exclude age limitations.
Operator - Definition modified to include custody or control as
part of operator responsibilities.
Owner - Definition shortened.
Page 6 - Premises - Defined for clarification.
Privacy - Definition modified to delete sight or sound references
on interruption by unwanted persons.
Residence Hall - Deleted in this version of the code. Residence
Halls now considered rooming houses.
Roomer - Roomer defined to account for occupants of a dwelling who
are not members of the family.
Rooming House.- Definition reworded for clarity. Definition further
expanded by segregating rooming houses into two classifications;
Type 1, Type 2, by number of roomers involved. Licensing and fees
shall be based on these two classifications. For example, the staff
will be recommending a $20 annual fee for Type 1 rooming houses and
.a $40 annual fee for Type 2 rooming houses.
Page 7 - Temporary Housing - Defined to exclude tents, trailers, winnebagos,
and other type of non -permanent residence from being established
on premises other than permanent structures in accord with the
building and zoning code.
Temporary Permit - Definition deleted from this code inasmuch as we
do not intend to issue temporary permits any longer. There will only
be active permits which will be an annual permit or an application
for said permit, but no temporary permits would be issued. In the
past this has caused a great deal of confusion on the part of
citizens who only had temporary permits but understood that they had
a legitimate annual permit.
Toilet - Defined so as to clarify the type of equipment and the term-
inology'used in this code.
Page 9 - B. Access by Owner or Operator - Included to clarify role of tenant
or occupant to permit the owner or operator to enter the dwelling
at reasonable times to make the necessary repairs required in the
maintenance of the structure or by this code.
Page 10- E: Penalty - Paragraph moved to allow clarification in procedure
of code.
Page 11- F. Evidence - Paragraph moved to allow for clearer outline of pro-
cedure of code.
G. Service of Notice - Explanation omitted in previous drafts inserted
here to define what legal service of a notice is.
Page 12- H. Appeals - Modified to bring our code in align with the revised
administrative appeal procedures adopted by Council.
I. Other Remedies - Paragraph included to show proper relationship
of the housing code to building code, zoning code, or other applicable
law of the City of Iowa City.
J. Emergency Orders - Paragraph a clarification of emergency con-
ditions section in old code draft. It is designed to permit a ready
and immediate order to be sited and enforcement and correction expedited.
Hearin - Included to show that a hearing under an emergency order
that may be requested cannot delay enforcement of said emergency order.
Section 9 30 4 Minimum Standards for Basic Equipment and Facilities
Pages 14 thru 17 inclusive
This section is a basic general rewrite of the last draft of Section.9.3.7,
clarifying language and consolidating items to abbreviate the text.
The following items were eliminated from this draft because they were not
necessarily required by State Code Chapter 4.13, or if required, were required
in special type uses'such as multiples and rooming houses. Those special use
requirement areas have been segregated as separate sections of this revised
code draft.
B.2. - Cabinets and/or shelves or the storage of eating, drinking and
cooking equipment and utensils and of food that does not i.equire
refrigeration for safe keeping.
F. Every dwelling or rooming unit shall have a facility for the safe
storage of drugs and household poisons.
T. Every multiple unit and rooming unit shall have access to two (2)
independent, unobstructed means of egress remote from each other,
and available from each floor level. At least one shall be a
doorway which discharges directly or via corridors or stairways or
both, to the exterior of the building at ground level.
Every dwelling or rooming unit shall have safe, unobstructed means
of egress leading to safe and open space at ground level, as required
by the laws of this State and ordinances of the City of Iowa City.
U. ... All stairways between occupied floors and porch and walkway steps
shall have at least six foot six inches (61611) of headroom: riser
height of not more than eight inches (81.1) and a tred width not less
than nine inches (911). Fire escape stairs shall have a tred width
of at least nine inches (911) and a riser not in excess of nine inches
(911). Winders shall not be used on fire escapes.
0
Section 9 30.5 Minimum Standards for Lighting, Ventilation, and Heating
Pages 18 thru 23 inclusive
General rewrite of old draft Chapter 9.30.8 eliminating items covered by existing
City of Iowa City ordinances such as the building code and/or fire code. General
rewrite of chapter to clarify language and simplify understanding.
The following paragraphs were eliminated from this section or moved to other
appropriate sections.
F. Every public hall and stairway in every multiple dwelling containing
five or more dwelling units shall be adequately lighted at all times.
Every public hall and stairway in structures devoted solely to dwelling
occupancy and containing not more than four dwelling units shall be
supplied with conveniently located light switches, controlling and
adequate lighting system which may be turned on when needed, instead
of full time lighting. The continuous or available light intensity at
floor or stair level shall be at least 2 foot candles.
Section 9.30.6 Minimum Space, Use, and Location Requirement
General rewrite of old draft Chapter 9.30.9 clarifying language and segregating
text into an outline format to make easy readability. Significant changes:
Page 24 - D. Ceiling Height- No habitable room in any dwelling shall be in
any part less than seven (7) feet high from finished floor to fin-
ished ceiling; the average height of any such room shall not be
less than seven feet six inches (716"). Any habitable room located.
directly below a roof in a private or a two family dwelling requires
a seven foot (71) ceiling height in one-half its area, in areas of
less than five (5) feet ceiling height 'shall not be considered as
part of the required room area.
Present Minimum Housing Standards require only seven (7) feet
ceiling height. The State Code now requires this to be changed
to seven feet six inches (7'6").
Section 9.30.7 Responsibilities of Owners Relating to the
Maintenance of Dwellings and Dwelling Units
pages 26 thru 30 inclusive
Forms a distinct section of items extracted from old draft Chapter 9.30.11 and
various other chapters. Along with a few additional staff recommendations and
rewording, this section separates maintenance standards from the already cited
design requirements for dwellings. Additions:
9.30.7.A.3 - Everyinterior partition, wall, floor, and ceiling shall be
capable of affording privacy and maintained so as to permit
them to be kept in a clean and sanitary condition.
More specific than the general phrasing of "maintained in good condition".
9.30.7.0 - Chimneys and Smokepipes - Every chimney and every supplied smoke -
pipe shall be adequately supported, reasonably clean, and main-
tained in a reasonably good state of repair.
Specifies safe and proper maintenance.
9.30.7.N - Prohibited Animals - No horse, cow, calf, swine, sheep, goat,
chickens, geese, or ducks shall be kept in any dwelling or part
thereof. Nor shall any such animal be kept on the same lot or
premises with a dwelling except under such conditions as may be
prescribed by the Housing Inspector.
A State Code requirement.
9.30.7.0 - Owner to Let Clean Units - No owner shall occupy or let for occupancy
any vacant dwelling unit or rooming unit unless it is clean, san-
itary and fit for human occupancy.
Subject not addressed in previous drafts.
Section 9.30.8 Responsibility of Occupants Relating to
the Maintenance of Dwellings and Rooming Units
pages 31 and 32
As with previous section; most items extracted from old draft Chapter 9.30.11,
and reorganized here as a separate section. Additional staff recommendations
included:
9.30.8.8 - Plumbing Fixtures - The occupants of a dwelling unit shall keep
all supplied plumbing fixtures therein in a clean and sanitary
condition and shall be responsible for the exercise of reason-
able care in the use and operation thereof.
Not spoken to in previous drafts.
9.30.8.E - Use and Operation of Supplied Heating Facilities - Every occupant
of a dwelling unit shall be responsible for the exercise of
reasonable care, proper use, and proper operation of supplied
heating facilities.
Not spoken to in previous drafts.
CHAPTER 9.30.9 ROOMING HOUSES
pages 33 thru 44 inclusive
This section has been extensively enlarged from old draft chapter 9.30.13.
Significant administrative items have been included as well as State Code require-
ments applicable to this type of occupancy.
9.30.9.8 - 9.30.9.J: These nine items will accomplish a thorough and detailed
regulatory system. Changes in occupancy can be precisely
documented and thus less easily abused.
9.30.9.R - 9.30.9.T: Additional specifications for rooming house operations.
9.30.9.U, 9.30.9.V $ 9.30.9.W - These detailed requirements for communal
kitchens and dining rooms in rooming houses are not spoken to
in present code or previous drafts.
9.30.9.AA - 9.30.9.DD - These items clarify responsibilities for sanitation and
maintenance. BB written to conform with other related City
ordinances concerning garbage disposal.
9.30.9.GG - 9.30.9.II - These sections are State Code requirements.
9.30.9.KK - Two ways of egress are required by present Housing Code. The
three subsections are State Code additions.
Section 9.30.10 Multiple Dwellings
pages 4S - 50 inclusive
This section parallels the previous one in licensing, administrative procedures,
and State Code requirements applicable to this type of occupancy.
9.30.103 - 9.30.10.H - Items detail the regulatory system for multiple
dwellings and provide an accurate history of occupancy.
9.30.10.Q - 9.30.10.0 - These five items are State Code requirements
stipulating the design of multiple dwelling structures.
9.30.10.W. - Two ways of egress are required by present Housing Code. The
three subsections are State Code additions.
Section 9.30.11 Alterations
page 51
Each of the eight items in this section are State Code requirements. They
control structural alterations to multiple dwellings. While approval of new
construction and alterations are the responsibility of the Building Division
rather than the Housing Division, the legal staff feels that these items are
properly included here to assure a comprehensive City ordinance.
Section 9.30.12 Remedies
pages 52 $ 53
This section is essentially the same as present Housing Code. Placard and
condemnation procedures •are outlined. Significant changes:
9.30.12.A - Inspector to Determine Occupancy - The Housing Inspector may
prohibit in any multiple dwelling or rooming house the letting
of lodgings therein by any of the tenants occupying such
multiple dwelling or rooming house, and may prescribe condi-
tions under which lodgers or roomers may be taken in such -
dwellings. It shall be the duty of the owner to see that the
requirements of the Housing Inspector in this regard are at all
times complied with, and a failure to so comply on the part of
any tenant, after due and proper notice from said owner or from
the Housing Inspector, shall be deemed sufficient cause for the
summary eviction of such tenant and the cancellation df his
lease. The provisions of this section may be extended to private
dwellings and two-family dwellings, as may be found necessary by
the Housing Inspector.
This section relates to the recommended regulations controlling overcrowding
in multiples and rooming houses in sections 9.30.9 F, 9.30.10 of this draft,
and may be extended to one and two family dwellings when applicable.
Section 9.30.13 Retaliatory Conduct Prohibited
pages 54 E 55
This section was drafted to conform to existing City ordinance addressing retal-
iatory conduct by the owners of mobile home courts (Ordinance k 76-2822 )•
Previous drafts have addressed the subject through different wordings.
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Informal Meeting
October 10, 1977
Page 2
MAINTENANCE BUILDING
Plastino explained the Craig Minter/Jim Brachtel plan to use 8 of the urban
renewal modulars, the renovation and future plans in two other phases. Some
work would be done by City crews. Buses would be in a totally separate
building. Possibly UNTA could fund 80% of a bus barn building later on.
No Council objections were voiced.
GILBERT/PRENTISS - STATUS OF TRAFFIC SIGNAL INSTALLATION
A memo from Plastino outlining the status was distributed. Regarding the Keokuk/
Bypass 6 project, he advised that only the left turn arrows on the'Bypass should
be done, and to hold off on the frontage road. To move the Gilbert/Prentiss
project up a year, would cost about $6,000 extra, and the earliest installation
date would be next summer. ($6,000 -consultant costs) Berlin advised that a motion
could be made to change the priority of this project in the Capital Improvements
Program.
HOUSING OCCUPANCY AND MAINTENANCE CODE
Director Mike Kucharzak, Inspector Bruce Burke and Commissioner Bob Hibbs were
present for the discussion. Kucharzak distributed the corrections and changes
for 9.30, and the Study Material for 8/25 Draft of Chapter 9.30. He explained
the changes in definition of Family, Residence Hall, Temporary Housing, Temporary
Permit and Rooming House Operator. The definition of Permanent Structure was
requested, also information on what triggers the need for a building permit.
The temporary permit will be abolished. Council discussed controlling density,
fees for permits, absent landlords, parking, impact of definition for Rooming
House Operator. Hibbs noted that the Commission would be reviewing the draft
starting Wed. 6 suggested that it needed citizen input & study also. Further
discussion included variances that can be allowed by the Board of Appeals, (9.30.3H),
rent withholding. New draft copies will
smoke detectors, 650 heating level
IS be distributed to all interested persons. Councilman Foster left the meeting,
:z 4:50 PM. Some provisions are from the State Code, $ are archaic. Council
should discuss these with our Legislators.
EXTENSION OF STURGIS FERRY ROAD
City Manager Berlin reported on the status of the road after the discussion which
had just taken place between all parties involved. Southgate $ McDonalds can work
out the planning problems relating to parking and the area for the road. Southgate
will not pay for the paving. The land owner (road area) will not sell, so the
land would have to be condemned, and the City would have to pay for the road,
approximately $35,000. Staff recommended that it was not worthwhile under these
circumstances.
RESET PUBLIC HEARING -AMENDMENT TO ZONING ORDINANCE
City Clerk Stolfus advised that the public hearing set for 10/25 on the amendment
to the zoning ordinance regarding the moratorium would need to be reset for I1/1
because of legal problems in drafting the notice, f, legal publication could now not
be made for the hearing on the 25th.
Meeting adjourned, 5:45 PM.
0 •
INFORMAL DISCUSSION
OCTOBER 10, 1977
tiw� 8
INFORMAL COUNCIL MEETING: October 10, 1977 at 1:30 P.M. in the Conference
Room at the Civic Center. Mayor Neuhauser presiding. Details tape-
recorded on Reels # 31 $ 33.
COUNCILMEMBERS PRESENT: Neuhauser, Balmer, Foster, deProsse, Selzer, Perrot (1:40)
Absent: Vevera
STAFFMEMBERS PRESENT: Berlin, Hayek, Stolfus, Kushnir, Brachtel, Plastino,
Schmeiser, Schreiber
ZONING APPLICATIONS
Mt. Prospect IV, Final Plat Exemption from Stormwater Management Ordinance
discussed. Attorney Phil Leff and Dick Kratoska present with Developer Frantz.
City Attorney Hayek advised that the ordinance could be repealed, then
the plat adopted, and the Ordinance readopted, if there were enough votes.
City Engineer Gene Dietz advised that under administrative procedures
allowed, he could not grant a variance or waiver in this instance.
The Resolution will be added to Council agenda (18th).
Pepperwood Addition I61I Future plans and present plans for storm water
disposal were outlined by Steve Victor for the developer. A majority of
Council agreed that if the documents say that the plan as outlined will
be done, they were agreeable to that arrangement.
McDonalds, Riverside/Benton corner Council discussed the proposals for extension
of Sturgis Corner Drive, widening of Riverside, traffic problems at the
Riverside/Benton intersection, the private access easement(Cherry Lane)
between Sambos and Payless, options for traffic patterns. Perret was not
in favor of acquiring r -o -w for Sturgis Corner Drive. Representatives
of the three property owners concerned will meet with Public Works and
a report made to Council. Concern was expressed that plans had not been
reported on to Council earlier.
Village Green City Manager Berlin advised that City Forester Billie Hauber had
stated that with special arrangements, plantings could be made over utilities.
After discussion with PF,R Director Showalter, Council decided to place the
the bikepath over the utilities. Acceptance of the dedication of the 40'
strip will be on the 18th agenda.
ZUCHELLI - URBAN RENEWAL BIDS
Don Zuchelli stopped by for a minute to report that he had been negotiating
with Old Capitol B Dey Corp. groups, whose attitudes were positive and
cooperative. There are some technical questions to be negotiated. lie saw
no problem in executing and advertising the other 9 contracts. Councilm:mbers
voiced appreciation for his services.
NEWSPAPER RECYCLING - PRIVATE PICKUP
Public Works Dir. Plastino explained how the bid document was written,
regarding the base bid and the subsidy. An ordinance would be needed stating
that when paper was put out with the regular garbage, no one else could pick
it up. Some advertising would need to be done. Mort Ockenfels estimated
that he would need five ton a week. Council decided not to hold the public
hearing but to put out the advertisement for bids to be taken on Sept. 20th.
Plastino called attention to a pilot project regarding aluminum can pickup.