HomeMy WebLinkAbout1977-12-06 Info Packet.,. �1l irhi .oi
PRESENTATION
TO
CITY COUNCIL
IOWA CITY, IOWA
PREPARED BY
EBENEZER CENTER FOR
AGING AND HUMAN DEVELOPMENT
NOVEMBER 7, 1977
EBENEZER CENTER FOR AGING AND HUMAN DEVELOPMENT
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TABLE OF CONTENTS
Introduction
Overview — The Ebenezer Society
The Ebenezer Center for Aging
The Ebenezer Philosophy
Project Review
Consultation Program Sequence
Events and Time Sequence
Consultation During Construction Phase
Project Coordination
Scope Documents
Construction Documents
Responsibilities During Construction Phase
Management Events Schedule
Consultation Cost
Conclusion
Appendicies
1 Communication and Authority
Organization Chart
II Questions to be Discussed During Task
Force Orientation
III Questions to Accompany the Analysis
of Existing Community Resources
IV Considerations for Establishing Goals
V Architectural Consultation —
Research and Space Planning
VI References
VII Resumes
Larry D. Conrad
Richard E. Hanson
Glen H. Gronlund
Jeanne R. Setnes
Page
1-2
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6-8
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10-11
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13-14
14-16
17-18
19-20
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24-25
26-27
28-34
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37-40
42-44
45-46
47-48
VIII Behavioral Goals in the Design and 49-57
Program Planning of Facilities for Older Persons
EBENEZER CENTER FORAGING AND HUMAN DEVELOPMENT
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INTRODUCTION
The proposal that follows provides for the coordination of agencies,
services, and programs to elicit maximum input in the design and :onstruction
of service and housing facilities for elderly in Iowa City, Iowa.
The aging process is characterized by a series of changes; it is NOT
an illness, nor a disease, nor a deplorable stage of life. The changes are
generally slow and may occur at different times of life. These changes may
touch all aspects of an older persons life: physical, psychological, social,
economic and environmental.
Much of the recent research in aging has been directed at compensating
for the normal aging process. It seems apparent that since aging is accompanied
by changes, the services, physical environments and approaches for
interacting with elderly need be different from those available to younger
persons. When buildings or services do not support the steeds of older persons,
the older person may appear more disabled than he or she is in fact. Therefore,
our objective is to understand normal aging and to provide those resources
which will compensate a need in one area by strengthening another.
The physical setting is particularly important in this effort to provide
necessary supports and enhance self-reliance. A building may be planned to
capitalize -on each individual's capabilities on a twenty-four hour a day basis.
Housing and senior centers can, indeed, be designed to compensate for changes
in vision, hearing, agility, or mobility.
The physical setting must be combined with an effective owner and
management structure. Ideally, the objectives for older persons, the manage-
metit concept, the programs, and the facility design are each developed
together to enhance each other.
EBENEZER CENTER FOR AGING AND HUMAN DEVELOPMENT
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INTRODUCTION
Continued
In sum, this is a proposal for a total system of services and facilities
that will develop the human potential of older persons. The final product,
an effective housing and service center for independent living elderly with
related outreach services, will provide a living example.of_a positive
philosophy toward aging. This is an investment in our own future, and in the
future of generations to come.
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OVERVIEW - THE EBENEZER SOCIETY
The Ebenezer Society was• founded in 1917 by a group of Norwegian
Lutheran Church members, for the purpose of operating a small home for the
indigent elderly. Over the past sixty years, the Society has maintained its
religious commitment to older people, while growing in size and scope.
It is now the nation's third largest multi-level geriatric center, serving over
8$0 residents in its six facilities, and an additional 2200 older people through
ints community services.
The Ebenezer Society's main physical plant is centralized on three
blocks. Residential services include apartment living, shelter care, interme-
diate care and skilled nursing. In addition to the centralized facilities the
Society operates three nursing facilities, and provides management services for
housing for independent living elderly.
Several service options are available to older residents of the community,
The Ebenezer Society has an expansive outreach program. A Protective Service
program affords older persons in the community guidance in legal and financial
matters. The Ebenezer Society also'has a Homemaker/Home Health Aide
program with the goal of fostering independent living and providing alternatives
to institutional residence. The Ebenezer Society is committed to national
concerns in the area of human development and mental health and has a
nationally funded research and demonstration project, the results of which are
being applied throughout the country.
Throughout its history, the Ebenezer Society has worked to provide the
highest quality of care to its own residents. In addition, the Society has sought
to guarantee quality care for all older people, through its cooperation with
Federal, State and local governments, and its longstanding willingness to share
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EBENEZER CENTER FORAGING AND HUMAN DEVELOPMENT
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OVERVIEW - THE EBENEZER SOCIETY
Continued
experience and knowledge with other care providers.
The commitment of the Ebenezer Society, and the excellence of the care
it provides, are widely acknowledged by gerontologists, governmental officals,
other service deliverers, and - most important - the older people it serves.
THE EBENEZER CENTER FOR AGING AND HUMAN DEVELOPMENT
In 1976, the Ebenezer Society formed the Ebenezer Center for Aging and
Human Development, in an effort to formalize and coordinate its many non -
service -related contacts with government and other providers. The Center
was incorporated as a not-for-profit organization with four objectives:
- to conduct and coordinate research on aging. This involves grant.
submission, research design, date collection and analysis, and
dissemination of results.
- to develop and advocate. policies that promote the interests of the elderly.
to provide education and training to professionals and students, through
the development of lectures, seminars, conferences , and curricula for
inservice programs, community groups, and colleges and universities.
- to consult with individuals and groups on the planning, design,
implementation, financing, and evaluation of services and facilities for
the elderly.
The Center and the Society enjoy a unique sharing of organizational and
philosophical goals. This relationship permits the Center to draw upon
the experience of the Society; in addition, the Center can utilize the Society's
facilities as bases for observation and analysis, and as sites for demonstration.
In return, the Society'and its residents benefit from the research, policy
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THE EBENEZER CENTER FOR AGING AND HUMAN DE•VEL'OPMENT
Continued
development, education, and consultation provided by the Center.. This arrange—
ment is rare; typically, service deliverers and research and policy groups are
distinct, separate organizations with different — and often conflicting —
objectives.
THE EBENEZER PHILOSOPHY.
Each individual has unique strengths and weaknesses, and is best
approached as a whole person, composed of physical, psychological, social
and spiritual characteristics.
The needs of the whole person are met through a team approach, uniting
professionals, families, volunteers, and the individual being served.
Teamwork is supported through innovative, flexible, and responsive management.
Each individual has the right to participate in the decisions affecting
his or her life. Each individual must be able to choose among alternative
lifestyles, environments, and services. Services must be provided in a
respectful, caring, and trusting relationship that stems from and contributes
to mutual growth. The goals of service can include treatment, rehabilitation ,
individual development , and prevention of impairment. Existing programs and
services should be continually monitored, evaluated, and redesigned in response
to the changing needs of the individual and the community.' New programs and
services should be initiated whenever a need , and the appropriateness of the
service, have been documented.
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EBENEZER CENTER FORAGING AND HUMAN DEVELOPMENT
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PROTECT REVIEW
The merging of two owners and philosophies into one organized facility for services
to the elderly community is not an easy task and should not be taken lightly. The
fact that both owners are presently in a different stage of development, but both
need to work "in concert" to each owner's benefit makes the task even more
challenging. The dedication of the Ecumenical Housing Corporation and the degree
of desire of the city, heretofore observed, will definately determine the degree
of positive response toward quality programs and housing to elderly.
It is the understanding of the Ebenezer Center for Aging and Human Development
that the vacated Post Office building in downtown Iowa City will house a Senior
Citizens Center (owned by the city) with a 202/section 8 HUD financed housing
for independent living elderly project of 100 units adjacent , owned by the
Ecumenical Housing Corporation. The funding for the housing project is reserved
by HUD for new construction. The funding for the Senior Citizens Center
rehabilitation is yet to be formally approved.
The sharing of services in each facility will be extremely time consuming to plan
and coordinate, however the key to success will be the documentation of needs
and service's already in existence. This can only be done by obtaining maximum
input from all entities providing services and the elderly themselves.. The most
important aspect of this input is objective analysis, a main service the, Ebenezer
Center can provide. Presently many individuals and groups already perceive the
functions and services that will be provided by the combined facility. These'
perceptions may be absolutely correct or totally unfeasible due to many yet to be
determinedfactors, i.e. money, timing, space needs, etc. Unfortunately desire
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PROJECT REVIEW
Continued
and reality may be two very different things in the long run. The underlying
philosophy should be maximum "needed" programs and services for the elderly
in Iowa City at reasonable cost to funding agencies and the public. Only
objectivity will provide such a philosophy with workable results.
In order to meet the above challenge, the Ebenezer Center proposes a combined
task force to coordinate the programmatic and construction requirements to
complete a comprehensive facility for elderly service. The make-up of this task
force may be 2 members appointed by the City Council, 2 members appointed by
the Ecumenical Housing Corporation and 2 members at large agreed upon by the
4 appointed members. The chairman for this task force would best be a neutral
party, unaffiliated with. either owner and appointed by the six members above.
It has been the experience of the Ebenezer Center in working with groups of this
type that 7 members is the maximum number that'should make up the task force
membership to ensure prompt decision making and reporting that will allow for
smooth planning for the project.
The task force would serve to develop recommendations to be communicated back
to the owners and also would serve as the information gathering group to acquire
sufficient information to make quality decisions.
The four appointed members would report back to their respective owners tp
obtain "sign -off" on decisions concerning the project development.
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EBENEZER CENTER FORAGING AND HUMAN DEVELOPMENT
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PROJECT REVIEW
Continued
The organizational chart (appendix I).will outline the organizational and reporting
mechanisms recommended that the task force assume. The task force should be
considered as partners with the Ebenezer Center consultants in the overall project
development.
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CONSULTATION PROGRAM SEQUENCE
As mentioned before in this proposal, the coordination of decision making is of
paramount importance to the success of this project. Although not impossible,
such coordination will be extremely difficult in the time frame presently
established. The full cooperation of the City Council, City staff and officers and
board of the Ecumenical Housing Corporation is essential.
The housing'project literally can not be built on the proposed site without the
Senior Citizen Center process being established and programmatic decisions
made by janurary 2, 1978: The Senior Citizens Center may be cost prohibitive
without the cost saving potentials provided by the housing project on the proposed
site. Again coordination is essential!
The following events and time sequence is proposed with the understanding that:
1. Maximum input from the community is desired .
2. Housing and Urban• Development desires a preliminary proposal
as soon as feasibly possible for the housing project.
3. There is a desire for coordination for planning of the two projects.
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EBENEZER CENTER FORAGING AND HUMAN DEVELOPMENT
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EVENTS AND TIME SEQUENCE - FACILITYPROGRAM
November 21, 1977 City and Housing Corporation select consultant (authorize
consultant to start immediately and negotiate contracts
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EBENEZER CENTER FORAGING AND HUMAN DEVELOPMENT
as soon as possible.
City and Housing Corporation appoint two members to task
force.
November 23, 1977
Task Force appointees appoint two at large members. Task
Force appoint chairman.
November 28, 1977
Task Force reviews outline for community input.
Ebenezer begins program review and analysis.
(see appendix II)
December 16, 1977
Ebenezer reports program analysis recommendation to
Task Force (see appendix III)
Task Force owner representatives with Ebenezer report
program recommendations to owners for approval.
(see appendix IV)
January 2, 1978
Concensus obtained from owners on program for project.
Ebenezer establishes design program for project.
January 2-16,
Ebenezer to review design program with design build team
1978
to establish feasibility of program incorporation considering
site; building usage; code; Housing and Urban Development
cost, and time constraints.
Begin preliminary plans.
January 16-30,
Present preliminary plans to owners for review, reaction and
1978
change , emanating in concept concensus.
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EVENTS AND TIME SEQUENCE - FACILITY PROGRAM
Continued
February 1, 1978 Present preliminary proposal to Housing and Urban
Development for housing and funding agency for Senior
Citizens Center.
February 1, 1978 Construction - Provide architectural consultation.
(see appendix V)
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CONSULTATION DURING CONSTRUCTION PHASE
The Ebenezer Center foi Aging and Human Development has a proposal pending
with the Ecumenical Housing Corporation for owners project representative and
construction phase responsibilities. The same services offered to the Ecumenical
Housing Corporation are offered to the city of Iowa City. A portion of the
Ecumenical Housing Corporation Proposal follows. This service is exactly the
same for both the City and the Housing Corporation.
The proposal to the Ecuemnical Housing Corporation is for a cost not to exceed
$27,000.00. If both owners use a common consultant there naturally will be
some cost savings. (see Consultation Cost section of this proposal).
It should be noted that the funding mechanism'for the old Post Office rehabilitation
has yet to be developed, consequently the amount of time and involvement
necessary to complete the construction phase is difficult to determine at this
time.
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EBENEZER CENTER FORAGING AND HUMAN DEVELOPMENT
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OWNERS PROJECT REPRESENTATIVE
A. PROJECT COORDINATION:
1. Architectural Program - Based on results of behavioral
mapping of the elderly market and constituency for this
project, an architectural program will be developed with
the owner for presentation to the design architect. This
program will provide the basis for schematic design
development and construction for the project and will
be used to prioritize decision making on behalf of the
owner and future residents.
2. The Ebenezer Center will coordinate processing of the
required documentation through the various Federal,
State and local agencies in cooperation with the owner,
architect, and general contractor.
B. SCOPE DOCUMENTS:
1. Review of architectural, civil, scope documents,
construction documents and structural plans and
specifications as they are being developed to advise
the owner and architect on construction technology,
economics and feasibility. Make recommendations with
respect to relative cost of alternative materials or
methods, availability and costs of all materials and
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OWNERS PROJECT REPRESENTATIVE
Continued - Z
labor and time requirements for procurement and construction.
2. Review construction cost estimates based on a quantity
survey of the plans for all phases of the project, reflecting
the state of completion of the documents at the preliminary
stage of development. Recommend revisions and refinements in,
this estimate and prepare new estimates as the documents are
developed, making recommendations to owner and architect to
maintain construction costs within owner -approved budget
limits.
3. Assist. in the establishment of a mutually agreeable basis
on a guaranteed maximum price at the time the scope
documents provide a full and total understanding of the
scope of the project.
C. CONSTRUCTION DOCUMENTS:
1. Review the value for each phase of the work so that
anticipated budgets can be proposed, representing all such
phases.
2. Recommend for early purchase of machinery and equipment
required for construction which, because of its long lead
time or for reasons of purchasing economics, may be
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OWNERS PROJECT REPRESENTATIVE
Continued - 3
beneficially contracted for. Review and monitor the
scheduling and expediting of such purchases.
3. Establish, with the architect and owner, divisions of the
work for the purpose of bidding or pricing and awarding of
separate sub -contracts to permit phasing of the construction
and otherwise to permit the work to be bid and performed in
an expeditious and economic fashion.
4. Review the plans and specifications with architect so as to:
a. Eliminate areas of conflict and overlapping
jurisdictions among the separate subcontractors on
the job.
b. Ensure that all phases of the work will be
appropriately assigned to a sub -contractor.
5. Assist the architect in developing his schedules for the
planning and design phase of each project element so that
sub -bids may be taken at the required time to expedite the
project in accordance with the project schedule.
6. Review sub -bids; tabulate and evaluate such sub -bids and
present recommendations, together with the architect, to the
owner as to award of subcontracts.
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OWNERS PROJECT REPRESENTATIVE
Continued - 4
7. Based upon the results of bidding, recommend subcontractual
relationships with successful sub -bidders for the various
segments of the project.
8. Review with the contractor a preliminary schedule of
construction activities, based on the project requirements.
9. Work with the owner and architect and develop a detailed
project schedule of time and activities in order to
establish the most effective and timely project phasing
and occupancy.
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RESPONSIBILITIES DURING CONSTRUCTION PHASE
A. Review with the architect, contractor and owner all labor,
materials, equipment and all sub -contract relationships necessary
for the proper construction and completion of the project in
strict accordance with the contract documents.
B. Evaluate, for the owner, supervisory staff on the job site.
C. Attend routine job meetings representing the owner, with architect,
general, and sub -contractors to discuss all construction related
matters and procedures, progress problems, scheduling and all
other subjects which may affect the timely, economic completion
of the project.
D. Review, and refine construction cost estimates as construction
proceeds, reporting the status of the project cost as sub -bids
are received and documents are completed.
E. - Review and monitor procedures for expediting the processing and
approval of shop drawings and all other construction related
communications between sub -contractors, architect and owner.
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QWUS PRWECr REPRESEWATIVE
(Conti—n—u—eT--'3J—
F. Ensure existence of, and review, a comprehensive safety program
for the project and ensure compliance of all subcontractors with
the safety program.
G. Monitor periodically, as may be determined necessary by the
architect and owner, job progress information and determine its
effect on overall job completion. Whenever progress appears to
be affected by the activities of a subcontractor or material
supplier, recommend whatever effective action may be necessary and.
approved by the owner and architect to re-establish proper sequence
and completion.
H. Maintain, for the owner, cost accounting records in accordance with
the owner's desire with respect to all subcontracts, and all work
performed on any other basis.
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MANAGEMENT EVENTS SCHEDULE
Following is a management events schedule to assist the owners in the
decision making process from present to the point at which the project,
programming and design should begin.
It should be noted that a construction start in the.spring of 1978 will
greatly enhance the overall cost savings of the project to ensure
maximum development of amenities within the facility.
It should also be noted that the timing of this project will be to a
major degree based upon the ability of the Ecumenical Housing Corporation
to make "bench mark" decisions as well as the workload and cooperation
available from the area HUD personnel.
Based on the sequence of the decisions made, (as outlined above) a
complete management events schedule will be developed by the Ebenezer
Center to assist in expeditiously processing the project through all
phases of development.
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EBENEZER CENTER FOR AGING AND HUMAN DEVELOPMENT
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Ebenezer CARD
9-15-76
FACILITY PLANNING PROCESS
---Nine Weeks ------------------------------------------------
xp ore un mg
set in program/
Opttons In terms
planning group
of Goals
Establish: who
what
when
Review existing
Set priorities:
Nature of service/building
Take to community
•
•Basic
how
decisions
arca/community
Establish numbers
Service concept
and churches/
revise or add as
I
services, tacit-
Funding to be explored
appropriate
•
oats
ales
Phasing
Establish need for
various
services k
'
'
facilities
basod on
.•
•
community
planning
reports
'
-----Eight Weeks----------------------------------------------------
Develop preliminary
Begin Application
repare Architectural
evelop
program description
process for funding
Behavioral Program
select
selectct
for services and for
ork with architect
staffing
Select
Preliminary
budget development
evelop alaCf[ng/
establish basic
rclatlonsh[ bubbles
Site
Develop Site selection
criterion and explore
Set community support
and establish Mason
Refine on Budget
---------------------------Final Planning Stage/Twelve Weeks ---------------------------------------
Assist
ee s -----------
Assist in
Approvals
Com fete Funding
p. .I nna nn Deve onment I Working Drawings
Dmmun" Community Review
Rev[ew and Revision
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CONSULTATION COST
Phase I — Facility Program Development
This phase as outlined in the proposal (prior to preliminary proposal
development) will not exceed a cost of $10,000.00* This cost is based on a
$40 per hour rate for principal consultants and $20 per hour rate for technician
time through January 30, 1978. Expenses for transportation are figured at cost,
with a per diem rate of $40.00 per day.
Phase I I — Owner's Representative and Construction phase
This phase, as outlined in the proposal will not exceed a cost of $10,000.00,
The same rates and costs apply as phase I above. The length of this phase is
not to exceed 18 months from preliminary proposal submission, or until July
1, 1979
* Phase I anticipated cost,•is (not to exceed) $20,000.00. One half of this
cost would be born by the Ecumenical Housing Corporation and one half
by the city of Iowa City.
The costs will be documented and billed to the city on a monthly basis.
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CONCLUSION
The principal consultants on the project will be Mr. Dick Hanson, Project
Manager; Mr. Larry Conrad, Management Consultant; Jeanne Setnes, Finance
Director; and Mr. Glen Gronlund, Director, Center for Aging and Human
Development. (see appendix VII)
Technicians will be provided through the University of Iowa and programmatic
staff within the Ebenezer Society and Center.
It can not be overstated that coordination is the key to success for both the
Housing and Senior Citizens Center projects.
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EBENEZER CENTER FORAGING AND HUMAN DEVELOPMENT
APPENDIX I
IOWA CITY COMMUNICATION
and AUTHORITY ORGANIZATION
JOINT SENIOR CITIZEN CENTER
- HOUSING PROJECT
IOWA
HOUSING
CITY
CORPORATION
i
EBENEZER
PROJECT
EBENEZER
i'
Management
COORDINATION
Management
Team
COMMITTEE
Team
EBENEZER
Project
;
Team
ARCHITECT GENERAL
RCHITECT GENERAL
and
CONTRACTOR
and CONTRACTOR
ENGINEER
ENGINEER
CITY -COUNTY
ELDERLYGOVERNMENT
AGENCIES
COMMUNITY
PROGRAMS &
POLICIES
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APPENDIX II
Questions to Be Discussed During Task Force Orientation
The following questions will be raised during Task Force orientation and
decisions will be made on these issues during the program planning process.
1. What target audience should the project serve? (Options, implications,
philosophical issues, trade-offs)
2. What age groups and capability levels will be served?
3. How do you serve a large number of persons and still offer a form of
life that is realistic, integrated and enriching?
4. How do you provide a caring community without creating an anteseptic,
institutional setting?
5. : What types of residence might be developed?
6. How do you unify the services and facilities?
1. What existing resources of the community can be utilized?
8. How do we promote self-reliance and still provide services?
9. What do local, state and national regulations offer in terms of
guidelines?
10. When do we go beyond the .traditional and the minimum to better meet
human needs?
11. What are the implications to•the city providing housing and related
support systems for multi-age groups?
12. What steps need to be taken to provide for greater support services
for individuals that should need assistance in the preparation of
meals, supervision of medications, orientation to present situation
or assistance with financial matters?
13. What alternative service - or health -oriented facilities are available
in the vicinity that may provide additional support for the tenants
and elderly program participants?
14. What letters of agreement can be obtained for submission with the
planning documents?
15. How will this project make efforts to integrate participants into the
.mainstream of community life? (Transportation, collaboration with
existing programs in legal.services, nutrition, religious/spiritual
needs, health facilities, schools, service organizations)
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16. What services might this project offer that could be used and supported
by the community at large? (Visiting nurse, nutrition, community
center, senior center, public areas)
17. Are there options for the tenants and participants of the project
to continue a meaningful, productive role in the community? Options
for gainful employment? Options for continuing education? Options
for meaningful volunteerism? (RSVP or less formal programs) Options
for involvement with government or politics? Options to interact
with persons of other generations or of the same generation but
living outside the project?
18. What issues are significant in the lives of local residents that should
be translated or captured in the housing project of its programs?
Local character of residences, unwritten priorities or values,
structural considerations, responses to climatic conditions, local
" .interests/ values, cultural responses.
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APPENDIX III
uestions to Accompany the Analyses of Existing Community Resources
Some of the questions to be addressed in the process of establishing services
have been outlined below. The Ebenezer Center will work with local input
and gerontological resources to provide the City with options and priorities.
1. What other similar projects are available in the community? (Name,
address, contact person, size, distance from target sites)
2. What should the proposed facility offer in terms of program that will
augment other community residences for older persons?
3. What should the proposed facility offer in the way of architecture
or design features to improve on the other similar local projects?
A. What supporting evidence is there to present with the proposal to
justify the need for the program design and housing unit(s)? (Waiting
list certificates, letters of support or interest, newspaper clippings)
5. What forms of public transportation are or will be avilable to the
tenants and participants of this facility? At what cost? On what
schedules? How accessible are these transportation vehicles?
6. Where will this facility be located in terms of houses of workshop
and/or sources of spiritual guidance?
7. What medical services are available to the tenants and participants
of this facility? (Distance, cost, service specialties for older
persons) Clinics? Hospital(s)? Ambulance? General Practitioners?
Podiatrists? Other Specialists? (Physical Therapists, Occupational
Therapists, Opthomalogists) Pharmacists? Hearing aid services?
Red Corss? Mental Health Services?
8. What consumer services will be available? At what distance from the
facility? Grocer? (And, how accessible is it from major transporta-
tion? Does it deliver? Will someone be able to transport groceries
in a shopping cart conveniently?) Health Foods Store? (for special
diets/low salt/low sugar) Banks? Stationary and news stores?
Drycleaner? Shoe Repair? Department Store? Crafts Shop?
9. If the above are not available, what efforts will be made to provide
residents with access to these resouces?
10. What forms of entertainment are available and at what costs and discounts
to older persons? Library? Movie theatre(s)? Education centers?
Parks? Outdoor recreation? (fishing, picnicking) Physical education
centers? Restaurants? Places older persons could visit with their
family members? Sites of special local interest? (museums, gardens,
sport centers)
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11. What other services are available to supplement the program of this
project? Homemaker services? Legal aid? Police? Fire? Communi-
cation Networks? (newspapers, TV, radio, production studios)
Can/should the facility "house" these programs?
12. What local interest groups have to be contacted for support?
Governmental? Commerce? Religious? Service? Financial? Neighbor-
hood? Existing Senior Citizen organizations? Publications/mass
media? Who will be responsible for contacting these groups? What
is a livable, viable schedule that needs to be followed to obtain
records of their support? Who will be responsible for keeping up
the interest and commitment of these groups; who will keep them
informed?
13. What needs exist in the local population of older persons that this
project can best be tailored to respond to?
14. What specific programs may be offered in the project? (Recreation,
music, greenhouse, group dining, legal services, consumer/shopping
services, transportation, religious services, physical exercise,
social events)
15. If some of the preceding are not planned for the immediate future,
what long range plans should be considered for either implementing
them and for providing appropriate space?
16. Who may run programs? (paid staff or volunteers)
17. What office or other space will be needed by these individuals?
18. What specific security protection must be made available to residents
and participants?
19. What are the local doubts about such a project and how will these
doubts be responded to?
20. How will this project fit into long range planning of the community,
especially with regard to expansion, transportation, urban renewal,
other planned facilities and services and long range planning for
older persons?
21. Why are housing and service centers for the elderly designed any
differently from buildings for the general public? Are specifically
designed environments justifiable?
22. What activities will tenants and participants engage in? Around
what activities should a facility for older persons be planned?
What programs might be offered to non -tenants within the housing
facility?
23. Is there some indication that planners or architects may have to look
beyond or outside the codes (architectural and healty) for planning
insights and programming?
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APPENDIX IV
Considerations for Establishing Goals
The following goals are derived from a study of current literature in the
field of quality environments for older persons. The Ebenezer Center will
work with the City, Ecumenical Housing Corporation and their designees
on the translation of these goals.
Considerations for Establishing Health Goals include:
I. A systematic program of rehabilitative and preventative medicine is
the cornerstone of quality care in environments for the aging.l
2. The older person should be guaranteed personal physical safety from
natural events such as fire, power shortages or unsanitary conditions.2
3. The mental and physical well-being of the aged is enhanced by provision
for well-balanced, appetizing meals, served with efficiency.
4. Any environment for the aged should contribute to the physical and
mental rehabilitation of the aged by creating opportunities for
physical exercise both indoors and outside.4
5. Appropriate therapy should be provided to return older persons'
impaired memories or perceptual capabilities as much as possible.5,6,7
6. Instruction, supervision and assistance should be available to the
older persons in the correct use of prescribed medications.8,9
7. An environment for the aged or handicapped should accommodate indivi-
dual sensory, perceptual and motor capabilities, while at the same
time allowing residents to be'as self-reliant as possible.10,11
8. Quality health care and related services may best be maintained and
improved by a program of continuing staff development through in-
service programs of training and regular on-the-job education.12
9. Aging is not an illness, but rather a process involving changes in
strength, physical appearance, ability and sensory capabilities. The
variability of the aging process should be reflected in flexibility
of services and assistance, as well as through facility design.13,14
10. Research has demonstrated that the relocation of institutionalized
older people can be a traumatic experience. Careful consideration
must be given, throughout the development of a new facility, to the
older residents of the existing facility and their concerns about
moving. Efforts should be made to ease the transition from the
old to any new facility.15,16,17
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Considerations for Promoting Independence in Activities of Daily Living:
Opportunities should be provided for the residents to function
independently in their environment and in social activities.18 Such
opportunities will contribute 19t? the individual's feelings of
competence and self-respect.
2. The individual should be provided with opportunities to exercise his
or her freedom of choice and personal decision-making abilities.21
Choices might be made over time schedule, activities and use of
various areas within the facility.
Persons living in an institution should have the option of controlling
various aspects of their immediate eny�7�ronment, such as heat, light,
and the intrusion of other residents.
4. Factors associated with a feeling of institutionalization should be
avoided. These factors would include: stimulus deprivation,
segregation from people not in the institution, lack of privacy,
forced dependency, separation f�q3 revious culture or lifestyle,
and repetition in daily living. >
5. Residents should have equal access to the resources of an institution,
regardleg Ff their physical handicaps or need for prosthetic
devices. Wheelchair users should not be relegated to certain
areas of a dining room or activities area. Activities shoulbe
provided for those who are deaf and/or visually handicapped.57
Since many older people will compensate for the loss or deficiency
in one sense by relying more heavily on another, environments for
the aged should offer a variety of cues to orient them to where
they are in the facility. Orientation to place is a basic need for
many older people who would prefer not to have to ask others for
information.28
Environments for the aging should signal passing time and seasons
through a variety of cues.29.30 However, efforts should also be
made to differentiate each day from another, to allow for activities
that are developed over time, and to reduce repetition in activities
and meals. Such factors may also help to reduce the feeling of
institutionalization and related boredom.
Considerations for Assuring Opportunities for Personal Growth:
An aged individual's self-concept and interest in a rehabilitation
program may be enhanced through social interaction with other
residents, staff and members of one's family. Opportunities for
social interaction ought to be encouraged.31,32,33,34
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2. The community may be an important resource for residents of an
institution for the aged. Conversely, members of the institution may
have insights and skills to share with residents of the community.
Efforts should be made to promote the sharing of resources, space and
services of an institution and of the community at large.35,36
3. An older person may feel more integrated with society at large if he
or she is in contact with people of all ages, from babies to other,
non -institutionalized older persons.37 Such contact should not be
restructed to short presentations by outside groups around a holiday.
but should be continued and personalized throughout the year.38
4. A program and facility should support the older person's interest in
learning new skills as well as drawing on former skills and hobbies.39
Opportunities should be available for older people to work on these
activities in groups or by themselves, to teach as well as to learn,
and to acquire the supplies necessary to pursue their interests.40
5. Outside an institution, one's life may include a series of surprises
or unpredictable events. Residents of an institution should also be
able to have their curiosity piqued or their imaginations stimu-
lated.41
6. Environments for the aging should reflect the previous life style,
interests, and geographic origin of the residents. It is healthy for
older people to relive the past as a means of coming to grips with
one's future.42 To divorce an older person from his or her roots
is to deny the sum total of his or her self to date.
7. Religion is a significant.force in the lives of most older people.43
Opportunities should be provided for the aged to live and to practice
their faith wherever they reside.
B. People who are sixty-five now do not come from a strong ethic of
women's liberation or sexual equality.44 Activities should be
available which respond to the need for men to congregate with other
men and women to congregate with other women. On the other hand,
we should recognize that older couples do have some sexual needs;
provision should be made for those individuals to enjoy each other's
company.45,46
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BIBLIOGRAPHY
United States. Senate. Developments in Aging 1972 and January -
March 1973, A report of the Special Committee on Aging, Washing-
ton, D.C.: U.S. Government, 1973, #92-670 0, pp. 31-41.
McGuire, M. Preventive Measures to Minimize Accidents Among the
Elderly. Occupational Health Nursing, 1971, 19, 13-16.
Treadwell, D. Planning the Nutrition Component of Long -Term Care,
Journal of the American Dietetic Association, 1974, 64 (1), 56-60.
McGuire, M. Design of Housing for the Elderly -A Checklist.
Washington, D.C.: National Association of Housing and Redevelop-
ment Officials, 1972, p. 6.
5 Oberleder, M. Emotional Breakdowns in Elderly People. Hospital and
Community Psychiatry, 1969, 20 (7), 21-26.
6 Butler, R.N. and Lewis, M.I. Aging and Mental Health: Positive
Psycho -Social Approaches. St. Louis: C. V. Mosby, 1973, pp. 29-45.
7 Tiven, M.D. Older Americans: Special Handling Required, Washington,
D.C.: National Council on the Aging, 1972.
B Braverman, J. Nursing Home Standards -- A Tragic Dilemma in American
Health. Washington, D.C.: American Pharmaceutical Association,
970.
9 Lamy, P.P. and Kitler, Drugs and the Geriatric Patient. Journal of
the American Geriatrics Society, 1971, 19 (1), 23-33.
10 Lawton, A.H. and Azar, G.H. 'Sensory and Perceptual Changes That May
Influence Housing Needs of the Aging. Patterns of Living and
Housing of Puddle -aged and Older People: Proceedings of Research
Conference, Ilashington, D.
United States Department of HEW,
1965, 11-15.
11 Lawton, M.P. Ecology and Aging. In: L.A. Pastalan & D.H. Carson
(eds.), Spatial Behavior of Older People. Ann Arbor: Univer-
sity of Michigan Press, 1910, pp. 40-61.
12 Stone, L.B. Provision of Rehabilitation in Nursing Homes. Journal
of the American Geriatrics Society, 1969, 17 (6), 576-594.
13 Lawton, M.P. Gerontological Research Institute - 1971 National Survey
of Housing for the Elderly: Report on Findings to Date. In:
R.H. Davis (ed.), Housinq for the Elderly. Los Angeles: Ethel
Percy Andrus Gerontology Center, 1973, pp. 83-4.
14 Bortner, R.W. Personality and Social Psychology in the Study of Aging.
Gerontologist, 1967, 8 (2), 23-36.
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15 Aldrich, C.K. & Mendkoff, E. Relocation of the Aged and Disabled:
A Mortality Study. Journal of the American Geriatrics Society,
1963, 11, 185.
16 Institute of Gerontology, University of Michigan -Wayne State University.
Relocation Report H2: Death and Survival. Undated: ca. 1972.
17 Blenker, M. Environmental Change and the Aging Individual.
Gerontologist, 1967, 7 (2), 101-105.
18 Donahue, W. & Stall, M. Psychological Aspects. In: E.V. Cowdry
(ed.), The Care of the Geriatric Patient (2nd Edition). St.
Louis, Missouri: C.V. Mosby, 1963, pp. 37-62.
19 Snyder, L.H. An Exploratory Study of Patterns of Social Interaction,
Organization and Facility Design in Three Nursing Homes.
International Journal of Aging and Human Development, 1973,
4 4 319-333.
20 Finkelstein, M., Rosenberg, G. & Grauer, H. Therapeutic Value of Arts
and Crafts in a Geriatric Hospital. Journal of the American
Geriatrics Society, 1971, 19 (4), 341-350.
21 McGuire, M.C. The White House Conference on Aging and Its Implications
for Housing Policy. In: R.H. Davis (ed.), Housing for the
Elderly. Los Angeles: E.P. Andrus Gerontology Center, 1973,
pp. 25-32.
22 Snyder, L.H. Patterns of Social Interaction, Organization and Facility
Design in Three Nursing Homes. Unpublished Master of Arts
Thesis, Cornell University, 1972, 176, 197.
23 Sommer, R. & Osmond. Symptom's of Institutional Care. Social Problems,
1961, 8 (3), 254-263.
24 Lawton, M.P. Ecology and Aging, Op.Cit.
25 Brody, M. Congregate Care Facilities and Mental Health of the Elderly.
Aging and Human Development, 1970 1 (4), 279-321.
26 Snyder, L.H. A Case in Point: Ther Geriatric Wheelchair, Human
Ecology Forum, 1972, 3 (2), 7-9.
27 Snyder, L.H. Design Promotes Self -Reliance. HUD Challenge, 1973, 4
(5), 10-12.
28 Lawton, M.P. Ecology and Aging, Op.Cit.
29 Lawton, M.P. Planning Environments for Older People. American
Institute of Planners' Journal, 1970 (March), 124-TT§-
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30 Mason, E. Some Correlates of Self -Judgments of the Aged. Journal
of Gerontology, 1954, 9 (3), 324-337.
31 Kramer, C.H. What's Needed to Get Patients Outside of Their Dependent
Selves: Effective Communication. Modern Nursing Home, 1969, 23
(3), 71-73.
32 Lawton, M.P. Social Rehabilitation of the Aged. Journal of the
American Geriatrics Society, 1968, 16 (12), 1346-1363.--
33 Lawton, M.P. The Human Being and the Institutional Building. In:
C. Burnett, J. Lang, D. Vaschon (eds.), Architecture for Human
Behavior --Collected Papers from a Human Behavior Mini -Conference
and Exhibit, November 11, 1971. Philadelphia: Philadelphia
Chapter of the American Institute of Architects, 1971, 31-40.
34 Butler, R.N. & Lewis, M.D., Op.Cit.
35 Ostrander, E.R. Community Relations and Residential Facilities for
the Aged. Nursing Homes, 1974.
36 Lipman, A. Old People's Homes: Siting and Neighborhood Integration.
Sociological Review, 1967, 15 (3), 323-338.
37 Butler, R.N. & Lewis, M.I., Op.Cit.
38 Lipman, A. Op.Cit.
39 Finkelstein, M. et al., Op. Cit.
40 Vickery, F.E Creative Pr. mining for Older Adults. New York:
Association Press, 1972.
41 Berlyne, D. Conflict, Arousal and Curiosity. New York: McGraw,
1960.
42 Butler, R.N. The Life Review. Psychology Today, 1971, 5 (7), 49-51.
43 Toward a National Policy on Aging. Proceedings of the 1971 White
House Conference on Aging, November 28 -December 2, 1971, Vol. II
Washington, D.C. Government Printing Office, 1973. SN/1762-0069.
See pp. 57-61.
44 Lewis, M.I. & Butler, R.N. Why Is Women's Lib Ignoring Old Women?
Aging and Human Development, 1972, 3 (3), 223-231.
45 Pfeiffer, E. Sexual Behavior in Old Age. In: E.W. Busse & E.
Pfeiffer (eds)., Behavior and Adaptation in Later Life. Boston:
Little Brown, 1969.
46 Libsenz, N.M. Sex and the Senior Citizen. New York Times Magazine,
1974 (January 20), pp. 8, 9, 28, 30, 32.
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47 DeLon9, A.M., The Micro -Spatial Structure of the Older Person: , Some
Implications of Planning the Social and Spatial Environment.
In: L.A. Pastalan & D.H. Carson (eds.), S�atia�l Behavior of Older
People. Ann Arbor: University of Michigan, 91 10, pp. 68-87.
48 Snyder, L.H., Ostrander, E. & Koncelik, J. The New Nursinie AgiHome:
A Response to the Behavior and Life Sty a of tng.
Proceedings of a Conference for Nursing Home Administrators'
Continuing Education Licensure, New York State College of
Human Ecology, 1972.
49 Kahana, E. & Harel, Z. Social Psychological Milieu in Residential Care
Facilities for the Aged. Paper presented at the Annual Meetings
of the Gerontological Society, Houston, Texas, October, 1971,
16 pp.
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Appendix V
ARCHITECTURAL CONSULTATION -RESEARCH AND SPACE PLANNING
The following represents general Ebenezer Consultation involvement with the
architects on the project:
1. Orient participating architectural staff to the psychological and health needs
of older persons, the goals for the project which have architectural
implications and the background concepts of gerontology to be expressed
in the overall project.
2. Orient systems consultants (engineering, heating, ventillating, etc.) to the
overall needs of the prospective residents as a means of providing them
with necessary background information .
3. Based on the. information available from the services, goals, etc., provide
regular consultation on schematic design phase. Review schematic drawings
for their consistency with master plan.
4. Consult with the landscape design/site planning staff of the architectural
firm on implications for overall exterior work. (Schematic phase)
5. Prepare written support to accompany architectural submission for initial
review.
6. Based on the initial schematic design recommend critical spaces for refining
the plans for design development.
7. Assist in the design development phase by providing specific information
on alternative sizes, space allocations, and their expression in the plans.
8. Based on plans for design development, consult on alternatives to be studied.
9. Prepare written support to accompany design development submission in-
cluding an analysis of design features in relation to project goals.
10. Suggest equipment and furnishings to meet the overall needs of the residents,
the budgetary considerations, and the conceptual unity of the project.
11. Consult on working drawings.
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REFERENCES
EXPERIENCE RELEVANT TO THE ELDERLY:
Lutheran Association for Senior Services
4100 Franklin Boulevard
Cleveland, Ohio 44113
Life Enrichment for the Elderly
23rd Street & Fifth Avenue
Hibbing, Minnesota 55746
Iowa Lutheran Home
613 West North Street
Madrid, Iowa 50156
Ortonville City Council
Committee on Aging
212 -2nd Street, N.W.
Ortonville, Minnesota 56278
Central Iowa Lutheran
Homes for the Aging
1101 Grandview Avenue
Des Moines, Iowa 50316
Corona Associates
Box 55
Indian Hills, Colorado 80454
Calvary Lutheran Church
of Golden Valley
7520 Golden Valley Road
Golden Valley, Minnesota 55427
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Exhibit VI
CONTACT:
Reverend Richard Warger
216/281/3700
Mr. A.P. Stavnes
218/263/9059
Mr. A.M. Sundberg
515/795/3007
Mr. Germaine Kunz
612/839/2549
Reverend Lyle Peters
515/265/1629
Mrs. Helen Brush
303/697/4663
Mr. David Thatcher
612/545/5659
EBENEZER CENTER FOR AGING AND HUMAN DEVELOPMENT
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Appendix VII
PERSONAL RESUME OF:
LARRY D. CONRAD
PERSONAL: Date of Birth .....5/28/45
Height ........... 57'
Weight ........... 175
Health ............ Excellent
EDUCATION: Indiana University, 1963 - 1966, Business Administration
National Executives Institute, 1966, Mendahm, N.].
PROFESSIONAL
ASSOCIATIONS: National Gerontological Society
Western Gerontological Society
Association of Hospital Development Directors
PROFESSIONAL
ACCOMPLISHMENTS: Author of Management Staff Training Program -
American Hearth Association- Santa Ana, Calif.
Develpped, with Design Through Research, Developers
Packet Architectural Guidelines for Handicapped
Housing _ Housing and Urban Development,Des Moines.
Lectured to groups on organizational processes, non-
profit agency development and elderly housing develop-
ment, such as:
National Association of Health Care Professionals
National Annual Meeting, United Cerebral Palsy
Area HUD agencies
Continuing Education Program - Long Term Care
Administrators, University of Minnesota
Congressional Delegation for the State of Indiana.
EMPLOYMENT
HISTORY
Present Director of Consultation Services/ Associate Director
of Ebenezer Center for Aging and Human Development
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PERSONAL RESUME OF:
LARRY D.CONRAD
1976-1977 United Cerebral Palsy of Iowa: Executive Director
1974-1976 Ebenezer Society: Director of Development and
Consulting
1968-1974 American Cancer Society:
1973-1974 - Metropolitan Area Director, Minnesota Div.
1972-1973 - Income Development Director, Indiana Div.
1971-1972 - Crusade Director, Indiana Div.
1969-1971 - Area 11 Director, Indiana Div.
1968-1969 - District X1 Representative, Indiana Div.
1966-1968 Boy Scouts of America, Koscuisko District Executive
1965-1966 Bock industries, Inc: Assistant to General Manager
EMPLOYMENT 10 years experience in Board Development including
EXPERIENCE: such area's as: purpose, philosophy, policies and
procedures.
10 years experience in fund-raising including such areas
as: development of goals and objectives, recruitment of
volunteers and staff, presentation package development,
with an evolving speciality in deferred giving and
foundation solicitation.
7 years in the area of supervision and training of staff,
including Management by Objective and motivational
techniques. Specifically 3 years staff consultant (Amer.
Cancer Society)to the Executive Vice -President.
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PERSONAL RESUME OF:
LARRY D. CONRAD
Was assigned direct responsibility for developing and
implementing a 5 year staff development program for
all staff, professional and clerical , from basic
orientation throughout management development.
Q years consulting with clients ranging from small long—
term care facilities to large community coalitions,
throughout the United States. Consultation included
areas of management, corporate structure, program,
community outreach, marketing, new facility design and
construction, long range planning and housing.
8 years experience in community service organization
ranging from direct service agencies to advisory group
organization.
ADDITIONAL National Executives Institute, Boy Scouts of America
TRAINING: National Trainin g School, Boy Scouts of America
National Professional Staff Conference, Boy Scouts of
America.
National Continuing Education Conference, Boy Scouts
of America
National Crusade Clinic, American Cancer Society
National Professional Staff Conference, American Cancer
Society
Big Cities Staff Meeting, American Cancer Society
Legacy and Deferred Giving Conference, American Cancer
Midwest Area Staff Conference, American Cancer Society
Planning Effective Meeting, American Cancer Society
Supervising and Training Staff, American Cancer Society
Theories in Group Dynamics, University of Illinois
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PERSONAL RESUME OF:
LARRY D. CONRAD
ADDITIONAL Management and Administrative Skills, American
TRAINING: Cancer Society
Indiana Division Staff Conferences, American Cancer
Society
Indiana Division Crusdae Conferences, American
Cancer Society
Patients' Rights Conference, Association of ALC
Services in America
Direct Mail Fund -Raising Conference, University of
Chicago
'National Gerontological Society Conference
JCAH Accreditation Conference
United Cerebral Palsy Associations National Annual
Meeting
Midwest Area Executive Directors Conference, United
Cerebral Palsy Associations
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PERSONAL RESUME OF:
RICHARD E. HANSON
PERSONAL: Date of Birth ..... 8/7/32
Height ........... 6'4"
Weight ........... 230
Health ........... Excellent
EDUCATION: Austin Junior College, 1951, Pre—Engineering
Macalester College, 195.2-1954, Business Administration
University of Minnesota — Extension, 1955-1956
Industrial Engineering
Marquette University (specialized unit), 1957,
Industrial Engineering
Tufts.College (specialized unit), 1958, Human Engineering
American Management Association, 1971, Industrial
Engineering
PROFESSIONAL
ASSOCIATIONS: Building Owners and Managers Association
Minnesota Society of Industrial Engineers
American Institute of Industrial Engineers
PROFESSIONAL
ACCOMPLISHMENTS: Author of two books on Building Operations —
1. Cleaning Management Handbook•
2. Programming Floor Maintenance
Lectured to groups on building management and
construction, such as:
Minnesota Society of Industrial Engineers
Minnesota School Business Officials
Building Owners and Managers Association
Club Managers Association of America
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PERSONAL RESUME OF: Page 2
RICHARD E. HANSON
EXPERIENCE:
Present Consultant to Ebenezer Society/ Ebenezer Center for
Aging and Human Development
1973-1975 Hennepin County
Position: Director of Property Management
Reporting to the County Administrator. Was responsible
for construction, operations, and space allocations for
all properties owned and leased by the County. Directly
supervised the design and construction team in the
$55,400,000.00 Hennepin County Government Center
project and coordinated with other staff the $37,000,000.
General Hospital project. In addition, was responsible
for the maintenance, remodeling and leasing of all other
Hennepin County buildings.
1968-1973 IDS Properties, Inc. - Baker Properties Management Co.
Position: Director of Operations - Position: Vice -
President, Operations
Responsible for the management and administrative
buildirig operations of all IDS Properties' owned and
managed buildings - approximately 4,000,000 square
feet of office and commercial space. In addition, co-
ordinated operations planning and value engineering on
all new construction projects including the IDS Center.
1965-1968 Dayton Development Company
Position: Properties' Manager
Responsible for the management and operations at South -
dale and Brookdale Shopping Centers and all office
buildings including Southdale Medical Building Complex.
Responsible for operations planning and value engineering
on new construction.
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PERSONAL RESUME OF: Page 3
RICHARD E. HANSON
1959-1965 Consulting Industrial Engineer Specializing in Building
Operations.
List of some clients:
Minneapolis Honeywell Minnesota Bldg.,
First National Bank -St. Paul, Mn. St. Paul, Minn.
Harrison Hotel -
Rochester School System 700-720 Bldg., both
Port Edwards School System -Wise. in Chicago, 111.
Also during this period.l conducted seminars for building
maintenance personnel throughout the country and
operated a contract cleaning company that maintained
Minneapolis - St. Paul Airport.
1956-1959 Dayton Company, Project Industrial Engineer
Worked with Consulting Industrial Engineer in setting
up standard time program for operating division of
Dayton Company.
1954-1956 Allied Stores Corporation, Golden Rule, St. Paul
Management Trainee, Operations
REFERENCES: Tom Olson -Former Chairman, Hennepin County Board
of Comm. - Minneapolis
'Stanley Cowle-Administrator-Hennepin County -Mels.
Edward Tower -Vice -President John Carl Warnake and
Assoc., San Francisco
Elmo Mongen-Vice-President University of California,
San Francisco, Calif.
Robert Michaud -President -Michaud, Cooley, Hallberg
and Assoc., Minneapolis
Wayne Popham -Attorney at Law, Minneapolis
Richard Peterson -President -Peterson, Clark, & Assoc.
Douglas K. Amdahl -Hennepin County District Court judge
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RESUME OF:
GLEN H.GRONLUND
Born and raised in Duluth, Minnesota
Attended University of Minnesota; B.A. graduate of St. Olaf College,
Northfield, Minnesota.
Active in youth movement (Luther League) of The American Lutheran Church in
1960's. Minnesota District Luther League President, International Luther League
First and Second Vice -President. Member of the first Luther League Board of
the American Lutheran Church.
Graduate of Wartburg Theological Seminary, Dubuque, Iowa, in 1959 with Master
of Theology. Intership at St. Paul's Lutheran Church, Waverly, Iowa and
clinical training at Augustana Hospital, Chicago.
Assistant Youth Director of The American Lutheran Church, Columbus, Ohio,
1959-1960.
Graduate of Columbia University and Union Theological Seminary, New York City
1962 Master of Arts in Religion and Society. Doctoral studies at Columbia and
Union, 1968-1969.
Associate Pastor at St. Paul's Lutheran Church, Waverly, Iowa (parish of 2,800
members) 1962-1963. Senior Pastor 1963-1968. Chairman of Human Relations
Association, Civil Rights Commission, Iowa District Social Action Committee,
County Heart Association.
Staff of national office of The American Lutheran Church, Minneapolis, Minnesota,
1968-1977. Leadership Development, Division of Parish Education, 1968-1973.
Director of Leadership and Personnel Development. Division of Service and
Mission in America, 1974-1977.
Member of ASTD (American Society for Training and Development), since 1974
Chairman of the Board of the Midwest Career Development Service, Columbus,
Ohio and Chicago, since 1976.
Member of Bethlehem Lutheran Church, Minneapolis, Minnesota.
Author.of articles in Lutheran Teacher, publication of the American Lutheran
Church.
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EBENEZER CENTER FOR AGING AND HUMAN DEVELOPMENT
•
E
•
RESUME'OF:
GLEN H.GRONLUND
Presently a member of corporate staff of the Ebenezer Society, a life center
for aging of The American Lutheran Church, located in Minneapolis and suburbs.
Director of Human Resources/Director of Center for Aging and Human Development.
Specialist in personnel systems, training systems, organization development
and board trusteeship training.
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EBENEZER CENTER FORAGING AND HUMAN DEVELOPMENT
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•
•
•
PERSONAL RESUME OF:
IEANNE SETNES
PERSONAL: Date of Birth..... 8/27/48
Height ........... 5'101/2"
Weight ........... 175
Health ........... Good
EDUCATION: Concordia College, Moorhead, Minnesota, Accounting
1966-1970
PROFESSIONAL
ASSOCIATIONS: Certified Public Accountant
Minnesota Society of CPA's
American Institute of CPA's
EMPLOYMENT
HISTORY:
Present Ebenezer Society: Controller and Director of Finance
1970-1975 Adrian S. Helgson & Company: Senior Auditor
1967-1970 OEO - Community Action Program
Operation Headstart: Bookkeeper
EMPLOYMENT
EXPERIENCE: As Senior Auditor, performed audits and consultation
services principally to non-profit corporations including
hospitals, nursing homes, social service agencies,
churches, colleges, high schools, seminaries and the
construction industry.
Specific fiscal responsibilities for budget administration.
Accountable for riscal management of:
Federally sponsored housing projects
Board and Care facilities
Intermediate Care facilities
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EBENEZER CENTER FOR AGING AND HUMAN DEVELOPMENT
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Page 2
PERSONAL RESUME OF:
IEANNE SETNE•S
EMPLOYMENT Skilled Nursing facilities
EXPERIENCE: Community Outreach Programs
Homemaker Program
Home Health Aid Program
Protective Service Program
Meals on Wheels Program
Chemical Dependency Program
Volunteer Program
Considerable experience in the fiscal control and
system design for Federal, State and County Grants.
Member of management group responsible to the .
Board of Directors and President for budget and
programmatic considerations.
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EBENEZER CENTER FOR AGING AND HUMAN DEVELOPMENT
I Appendix VIII
BEHAVIORAL GOALS IN THE DESIGN AND PROGRA11 PLA14NING OF FACILITIES FOR
• OLDER PERSONS:
L
0
Response to sensory and perceptual changes occuring in normal aging
a. Vision - In normal aging, the lens of the eye may yellow and
thicken (become sclerosed). The rate of pupil dialatioq
and contraction is slowed due to changes in musculature and
circulation. Implications of these changes for design are
as follows:
(1) Older persons need more light for the same tasks than
do younger persons. Portable fixtures, such as floor
lamps with 3 -way bulbs allow better direction and level
of lighting than conventional overhead fixtures.
(2) Older persons are more sensitive to flickering of lights.
Fluorescent fixtures should be carefully selected and
diffusers checked to make sure that flickering is
minimized.
(3) Older persons are quite sensitive to glare. Glare from
window glass, floors, walls, hot spots of light, glossy
paints, unsheltered outdoor areas, bathroom fixtures and
formica tables are particularly troublesome. Windows
should be provided with tinted mylar shades to reduce
glare yet allow easy viewing of the outdoors.
(4) Older persons have difficulty adjusting to sharp changes
in lighting. For example, ambulating from very bright
hallways into dark rooms, from bright outdoor areas to
dark lobbies, or from dark bathrooms to light halls --
may increase the rate of falls for older residents. Care
should be taken to modulate light changes and to provide
good lighting throughout.
(5) Older persons need good contrast between the focal object
and background in order to discriminate significant
features in their environment. Doors, signs, reading
materials, obstacles and handles on fixtures should
reflect this concern.
(6) Colors are effective means of communicating with older
persons. However, due.to the yellowing of the lens,
pastel colors will blend and may not be easily dis-
tinguished from each other. Very dark navy, brown, black
and grey tones also are difficult to discriminate. Bright
colors may be clearly read as contrasts on the neutral
background; reds, oranges, bright blues and strong greens
and violets are effective. Use of patterns, especially
bold ones such as stripes, should be used.
-49-
EBENEZER CENTER FOR AGING AND HUMAN DEVELOPMENT
P
0
b. Hearin - Older persons almost universally experience
M
in discriminating one voice against a background
of competing noise. Competing noises may be from other
conversations, music, dishes, vacuum, echos or traffic. Care
will be taken in responding to these concerns:
(1) In clinic settings, efforts should be made to reduce
competing noises through use of textiles to baffle sounds.
(2) Where it is desirable that older persons interact with
each other, such as at dining hours, in groups, or even
during visitation, the facilities should be planned to
reduce background sounds.
C. Tactile Sensitivity (Touch) - Generally speaking, the sense
of touch is not reduced as a mere function of age. In fact,
it may become increasingly important as a source of in-
formation as sight and hearing abilities are reduced. Often
institutional settings are devoid of tactile stimulation thus
depriving older persons necessarily of information.
(1) Wall surfaces, flooring, draperies, and even pillars may
effectively be covered with tactile materials to increase
their "readability".
(2) Where appropriate, tactile decorations should be used.
Plants, coarse wall hangings, or vellour (yet non-
absorbent) upholstery should be considered.
2. Agility.- Further changes occuring during old age and resulting
from changes in hormonal balance cause decreased agility in older
persons. Implications include the fact that it is very difficult
for older persons to crane their necks from left to right or look
way up tR the ceiling. Benches or couches should not be used as
major seating because they would require persons to turn necks in an
uncomfortable angle. Couches also create difficulties for the
person needing to support him/herself in the process of seating or
getting up as there is generally only one armrest within reach.
Chairs are more adaptable to the needs of older persons.
Signs and televisions should not be mounted at above eye level from
a seated position. Many older persons experience their environment
from a sitting position. Even the more mobile person will have
difficulty, either through agility or through vision in using cues
that are above eye level.
Wherever it is anticipated that older persons may be expected to
wait, seating should be provided as it is difficult to stand for
prolonged periods of time. For example, outside service offices,
entry to community room/dining area and at elevators, several seats
should be provided. Some space, however, should be left open for
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EBENEZER CENTER FOR AGING AND HUMAN DEVELOPMENT
•
the wheelchair users and for walking prostheses.
Easing the Relocation Process - Current research has indicated that
older persons are often traumatized by relocation. The physically
and psychologically disabled are generally most vulnerable to such
a move. Efforts should be made to reduce this tension by both design
and program responses:
a. Orientation to Place - Physical cues should be provided by
frequent and colorful signage, clearly labeled service areas,
and the potential to label each individual's apartment.
Placard holders should be placed to the side of doors rather
than directly on the door. (The doors may be open and labels
placed on a door are not readily visible). Large graphic plans
of the facility showing significant services should also be
available in the lobby lounge.
b. Orientation to Time and Schedule - Older persons, particularly
those experiencing forms of arteriole sclerosis heart disease,
frequently experience short-term memory losses. Disorientation
to exact time as well as to dates and passing time are frequent
characteristics of older persons. Clocks in lounges and
waiting areas as well as hallways, calendars in public areas
as well as rooms, and differentiation between days through
special scheduling, meals or other program should be available.
Independence in Activities of Daily Living - Although changes occur
in vision, hearing and agility, aging does not necessitate the loss
of independence. The.physical setting and the service program may
be marshalled to promote self-reliance, to compensate for individual
changes in sight or mobility and to allow the older person t0
pursue meaningful activities.
It has been said that people are often disabled by the inadequacies
of the environments in which they must live or function. These
same settings may be organized to allow the older persons to
capitalize on their strengths and experience.
Specific examples include:
Walkinor Wheetin Out of Doors - The setting should be
organized to a ow or wa ks o varying lengths with places for
resting. Both the site and the surrounding community should
offer opportunities for walkingiCurb cuts in the sidewalks
should facilitate the use of neghboring blocks by persons with
low vision as well as by those using walking aides.
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EBENEZER CENTER FOR AGING AND HUMAN DEVELOPMENT
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(1) Since many older persons are afflicted with arthritis
which may affect their ability to move comfortably at
various times of the year, the grounds should be planned
with shorter walks. Walks should be provided with low
vision as well as those who may be somewhat unsteady on
their feet.
(2) The grounds should be planned for easy use of shopping
carts which may be used as people proceed along their
routes.
b. Food Preparation and Nutrition - One of the most significant
needs of older persons is Tor well-balanced and nutritional
meals. Several studies have shown that older people often do
.not eat well because it is difficult to prepare food, because
they do not care to eat alone or because they have difficulty
obtaining groceries.
(1) Individual kitchens should be planned for ease of movement
and food preparation, food storage and meal serving.
(2) An open access between the kitchen and dining/living area
should be planned so that one tenant might prepare food
with another or while another is in the dining area.
Serving also should be considered in the kitchen -dining
area design planning.
(3) Small groups may dine together in floor lounges.
(4) The multi-purpose community room should accommodate large
group meals, prepared either by the tenants or by other
community agencies.
(5) The multi-purpose community room should also serve other
persons in the community, and promote an integration of
services.
(6) Home -delivered meals may be prepared or distributed
through the resources of the facility (parking, drive
areas, waiting areas, and pick-up stations should be
available).
(7) Nutrition education should be available to residents
through educational programs.
(8) The multi-purpose community room kitchen should be designed
to teach elderly or physically disabled persons techniques
for food preparation and kitchen activity organization
that may be used within this facility or in one's own home.
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EBENEZER CENTER FOR AGING AND HUMAN DEVELOPMENT
0
11
(9) Elevators should be planned to accommodate shopping carts
and the site should be organized to facilitate grocery
shopping. Public transportation to additional food stores
should be available directly in front of the site. Grocery
deliveries should be accommodated at the reception desk.
c. Bathing and Grooming - Several studies conducted through the
U.S. Department of Housing and Urban Development as well as by
other agencies have indicated that the bathroom is the site of
many accidents experienced by older persons. HUD studies show
that bathtubs are particularly hazardous.
However, personal care and grooming are important to older
persons as a means of facilitating other social activity.
Special care has been taken to develop safe bathrooms through-
out this facility.
Examples should include:
(1) Each residential unit should be planned with a shower. The
shower should accommodate a seat or chair so that an
individual may have the choice of standing or sitting,
depending on need. A telephone -like shower head
should be used as these will serve the standing individual,
regardless of height, yet may be used from a seated
position. In addition, fixtures and soap containers should
be planned for safety and for use from a standing or
seated position. The interior of the shower may have rails
that may be.used for support. The shower stall may be
barrier free so a person might make an easy transfer from
a wheelchair and be less likely to trip. (The percentage
of units totally accessable may be dictated by financial
constraints).
(2) Many times bathrooms are planned around the needs of
persons (regardless of age) having normal vision. However,
various grooming activities are accomplished without one's
spectacles. To increase visibility, fixtures should be
selected to minimize glare, to provide good contrast and
to allow direct and close views from mirrors. (Tilt mirrors
if possible).
(3) Sink fixtures should allow an individual to sit while
washing him/herself, shaving, or washing out personal
items.
(4) Handrails in bathrooms may be provided around the water
closet in certain rooms. In some apartments, these rails
may be mounted as part of the water closet as that design
has been found more usable than those mounted along one
side of the wall or on the floor. However, to accommodate
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EBENEZER CENTER FORAGING AND HUMAN DEVELOPMENT
0
•
0
wheelchair transfers that may be done by the physically
disabled residents, swing -away rails may be planned. Swing -
away rails are usable by older persons while facilitating
a side transfer from a wheelchair.
(5) Medicine cabinets located behind mirrors often do cot
provide adequate storage for the size and type of items to
be stored. In addition, they require reaching overhead
and are not compatible with tilting mirrors (which are
helpful to persons who are seated). Consequently, medicine
and cosmetic items should be stored in a vanity case which
is easy to open and along the vanity shelf around the
sink. An additional side shelf should be available for
storing shaving items and regularly used cosmetic items.
(6) All bathrooms should have an emergency device, mounted
about two feet off of the floor so it may be reached at
either seated position, or, if necessary, from the floor.
(7) Non -reflective surfaces should be provided throughout.
(8) Lighting should be selected to allow for easy use of the
sink and shower area as good lighting is important in
accident reduction.
(9) If codes will allow, carpeting should be provided in the
bathroom to eliminate the use of throw rugs which may
create accidents, and to provide better gripping for the
person in bare feet.
(10) Shower curtains rather than glass doors should be provided
in the bathroom as these are more accessible and less
hazardous. They are also easier to operate.
(11) All towel bars and soap dishes should be planned to be
sturdy and mounted like grab bars in case they are used
to prevent falls.
(12) Rather than use hooks in the bathroom for clothing, loops
should be provided. These loops are both less dangerous
and can be mounted lower than hooks:
d. Personal Housekeeping - 0enerally, apartment accommodations for
older persons are smaller than the home they have been
accustomed to. Housekeeping is often listed as a major cause
for moving, and the new unit should be organized around the
needs of a less agile individual who wishes to do his or her
own housework.
This goal should be achieved through the following planned
features:
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EBENEZER CENTER FOR AGING AND HUMAN DEVELOPMENT
•
(1) Space should be planned in the bedroom to allow the
bed without undue stress or
individual to make his/her own
strain.
be designed for ease of reachingand
for
(2) Storage areas should din9
and rod
eshould
in
also blf
e providedn
cleanbing�utensilst
(3) Each unit should have a walk-in closet for storing less
items.
frequently used or out sized
(4) Walls should be treated to allow for display of personal
This is true of the
items which need not be stored.
and bedroom(s).
kitchen, living area
(6) On each floor, a maintenance closet should be available
for keeping a general use vacuum.
be centrally located on each floor.
(6) Trash chutes should
(7) Windows should be easy to operate and allow tenants to air
their apartments.
(8) Dirty laundry should be stored in the bathroom, under the
or in
•
sink, in the walk-in closet driedthe andbedroom oned in specially
bags and should be washed,
designed laundry areas.
The facility should
Flexibility ty to Move Within the Falinarriers, not only so that
be planned to reduce arcni�=�
walking aides may be used within an�desvcanatravveltfreelybu
walking a
also so that persons'using
building, lounges, hallways, elevators and
throughout the
community spaces.
th at t
or
he needsaoflvariousso
(1) Furniture should be selected t users or
may be arranged according
by individual groups.
houled or
movement and are
(2) Ganged seating and couches
teasynmovemes
inhibib
avoided completely as they
difficult to converse from.
g the
air
idereduinnneeds
planning halls
(3) ebecf
ofeanuolder person)oshould cons
units. Handrails should be
elevators and residential
planned strategically throughout the facility.
•
(4) Resting places should be designed into the facility
and at the facility
•
adjacent to elevators, dining entry
entries.
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FORAGING AND HUMAN DEVELOPMENT
rnFUF.ZER CENTER
11
0
(5) Because of the anticipated needs of the disabled residents,
efforts should be made to plan fixtures and switches that
will be usable from a sitting position. Handles on doors,
drawers, light switches, electrical outlets, appliance
controls, sink handles and window shades should be
selected with the needs of the less ambulent and agile
in mind. As another means of promoting independence
within the facility, doors should be selected that will
require less strength to open.
Individual Choice - Self reliance and choice over daily
activities are closely related and essential for a successful
project. Choice may be reflected through the following design
responses:
(1) Individual control over resources such as room heat, air
circulation/ventilation from windows, and light should be
designed into the facility.
(2) Choice for personalizing one's own residence through
placing items on walls, in window boxes or furniture
arrangement options should also be available.
(3) As a means of reinforcing choices, areas for communicating
scheduled events or opportunities should also be planned
through bulletin boards to be placed at the entries,
outside of elevators and inside of lounges.
5. Opportunities for Communication - Communication with other tenants,
family members and with people of all ages should be reinforced
through a variety of design and program planning options:
Each person should have the opportunity to select the social
scale or group size in which he or she feels comfortable. This
means a person may elect to stay in his/her apartment or to
invite others in. Small groups should be accommodated for
informal gatherings in floor lounges throughout the facility.
Organized activities should be available on the first floor or
may be scheduled in a lounge. These, too, will vary from food
for thought to productive enterprises.
b. Communication should be facilitated by measures taken to reduce
competing sounds or extraneous noise such as carpeting, care-
fully treated ceilings and facility orientation.
c. Telephones should provide the opportunity for sustaining contact
with others.
d. Television cables should afford the option of another form of
communication.
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EBENEZER CENTER FOR AGING AND HUMAN DEVELOPMENT
E
0
e. Interaction with grandchildren and people of all ages should
be facilitated by the option of having larger dinners in the
floor lounge, using outdoor play or meeting areas and having
resources within the facility such as a greenhouse to share
with others.
f. Local information referral services should be tied into the
facility through a variety of programatic responses.
6. Protection of Individual and Life Safety - Offering safety and
security for the residents and for• their visitors is particularly
important in a building for independent living elderly. Efforts
should be made to accommodate the agility and perceptual capabilities
or various individuals in the planning of fire evacuation, security
systems and call systems.
The ultimate goal is to provide older persons the necessary
resources to maintain a personally meaningful life in a setting
which facilitates individual objectives and allows for personal
growth.
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EBENEZER CENTER FORAGING AND HUMAN DEVELOPMENT
• Johnson county RECEIVED NOV 1 8 1977
regional planning commission
• Isobel ruiner ci a,iw,r
221/2 south dubuque Steel, sown city. owo 52240 (319)3518556 Emil 1 Brondl
November 16, 1977
Mr. Neal Berlin, City Manager
City of Iowa City
Civic Center
Iowa City, IA 52240
Dear Neal:
An interest has been expressed by the City of Iowa City and
United Way of Johnson County for the Human Services Committee
to arrange a meeting to discuss possible courses of action in
regard to the transient situation.
No services will be provided to transient individuals after
December 31, 1977 due to changes in funding and policies of
the Iowa City Crisis Intervention Center and the Wesley
Foundation. A meeting has been set for 10:30 A.M. on Monday,
November 28 at Wesley House to discuss this situation. Your
attendance at this meeting is important to a satisfactory
r.osolution of the transient situation.
The attached sheet shows statistics on the number and compo-
sition of the transient population served by the Crisis Center
from January through July of 1977 and is included to aid in
your assessment of the problem.
Sincerely,
Dave Schuldt, Chairman
Emergency Assistance Subcommittee
NOTE: The following people have also been invited to participate:
Johnson County Board of Supervisors; Mr. Richard Myers, Jr.
Mayor of Coralville; Brigadier Walter Kennedy, Salvation
Army; Ms. Mary Anne Volm, United Way; Mr. John W. Colloton,
University of Iowa; Rev. Paul Sandin, Iowa City Religious
Leaders Association; Ms. Mary McMurray, Ms. Kay Duncan,
Iowa City Crisis Intervention Center.
-4117/ C
Statics on Transient Populat
The Crisis Center lists the following categories of trans-
ients in need of assistance. Numbers and percentages are based
on all transient contacts from January through June of 1977.
Transient Contacts
Male individuals 316
Female individuals 30
Families/Number in families 30/124
Couples/Individuals in couples 29/ 58
TOTAL 528
The following is information on only those people who
received vouchers (food, lodging, or transportation).
Reasons for being in Iowa City and Types of Problems Encountered
Money stolen on the road
68
While hitchhiking
21
While traveling by car
7
While traveling by bus
3
Total contacts
30
All cash used for car repairs
93 188
Hitchhiking and ran out of money
27%
Traveling (short-term, unspecified
destination)
28
Long-term transient traveling
with no money
10
Lost money on the road
4
On way home to stay with rela-
tives
16
On way to start new job or
look for job
25
Unable to get ride due to bad
weather
12
On way to pick up check or
needing to wait here for check
12
Unable to find day labor along
way
25
Person they were to stay with -
was out of town
3
Ride left without them
1
Became ill/injured along way
9
Total contacts
145
Movin to new lace of residence
an ran out o money
Family member became ill along
3
way
3
Unexpected move due to death in
25
family - no travel money
2
On way to job interview/job
49
Unable to find job - need help
getting back home
18
Bus ride cancelled - no money
Psychiatric Hospital
for food or lodging
2
Total contacts
74,
In town looking for a job
No lace to sta while visiti
Looking for permanent job
62
Found job but no housing
7
No money until job starts
3
Total contacts
72
Pros ective Universitystudent -
no pis ace to stay
2
Vacationing - ran out of money
1
In town for hospital appointment
Veterans Hospital
3
21
University Hospitals &,
Clinics
25
University Hospital
19
Local residents
Westlawn
3
Oakdale
1
Laid off job because of illness
Psychiatric Hospital
2
_
Total contacts
3
46
No lace to sta while visiti
some-
one E h6 al
Veterans Hospital
3
University Hospitals•&, Clinics
25
Mercy Hospital
1
Total contacts
29
Local residents
Laid off job - waiting for
unemployment check
6
Laid off job because of illness
9
Looking for new job
7
Kicked out of apartment
3
No money for food stamps
S
Total contacts
31
0
14.0%
14.0%
.4%
.2%
9.0%
S..0%
6.0%
• •
CITY OF IOWA CITY
�,I /I(: (J_N1EI? 410 L WA SI IIN('ION S1 IOWA CITY IOWA !i2?40 (319) 354 Ir(9_)
November 21, 1977
Mr. Walter Link, Rehabilitation Loan Officer
Dept. of Housing & Urban Development
Regional Office
Room 300, Federal Office Bldg.
911 Walnut Street
Kansas City, MO 64106
Dear Mr. Link:
On Monday, November 14, 1977, the City Council authorized my Department
to explore the possibility of utilizing Section 312 loans to assist us
in our code enforcement and property rehabilitation efforts. As you
know, we are utilizing CDBG monies to provide technical staff assistance
for rehabilitation and are presently offering grants and City loans to
accomplish the rehab goals and objectives. The City Council budgeted
$492,550 for rehabilitation this fiscal year. Of this amount $435,459
was identified for financing assistance in loans and grants. We antic-
ipate having spent all the dollars prior to July 1, 1976.
Because of the success in our rehabilitation efforts and because the
amount of CD monies available to us will not accomplish all the needs
identified for rehabilitation, we are requesting consideration of
Section 312 loans for the Iowa City Rehabilitation Program. Specif-
ically, we plan to utilize the loans in this manner:
On a day-to-day basis we will give first priority for loan consid-
eration to single family homeowners who are low income and who will
require more than the grant to repair their homes. Second level of
consideration will be given to low income single family homeowners
who do not qualify for the grant but would qualify for the loan to
accomplish the necessary repairs. Next priority for consideration
will be owner -occupied structures other than single family whose
owners require a loan to accomplish the necessary repair work.
Lastly, we will consider investor owners who seek loan assistance
to accomplish the necessary code violation corrections on their
properties.
Our present rehabilitation standards address the Housing Code as the
minimum level acceptable for financing assistance. Inasmuch as we do
not have a Code regulating the maintenance of commercial structures, we
do not anticipate offering any financing assistance, including 312 to
commercial or institutional uses.
,Z//7/.D
Mr. Link •
Nov. 21, 1977
Page 2
We look forward to a favorable consideration of this request and we will
begin the necessary in-service training required to begin offering 312's
to our citizens as soon as we hear from you.
Sincerely, /
lich4all Kuchar ak
Director, Housing & Inspection Services
cc: City Manager
City Council
•City of Iowa cite
MEMORANDUM
DATE: November 29, 1977
TO: Airport Commission, Airport Manager
FROM: City Manager Iv"
RE: Services to Airport
Enclosed is a copy of the procedure and the purchase order to be utilized
effective December 1 for services and/or equipment provided to the airport.
Before work is authorized, the Airport Manager is to provide a copy of the
purchase order to you. The responsible department is then to prepare the
appropriate invoice. If you have any questions concerning this procedure,
contact the Finance Director.
cc: All Department Heads
ti/72
0
0
10/5/77
PROCEDURE POR CHARGING TIE AIRPORT POR
SERVICES PERFORMED BY OTHER CITY DIVISIONS
When the Airport requires work to be performed by a City Division or
wishes to utilize a piece of City equipment such as in the case of
runway repair or snow removal, the Airport Manager will issue a special
purchase order to the division for the work required. At the completion
of the job, an invoice will be made up by the division performing
the work or providing the equipment itemizing all costs incurred.
The invoice and a copy of the purchase order will be sent to Accounting
to be billed. The Airport Manager will approve and forward the
bill to the Purchasing Division so that a journal voucher transferring
the finds from the Airport to the applicable division may be made for
the approval of the Airport Commission. Upon receipt of the Airport
Commission's approval, the transfer will be made.
0
PURCHASE ORDER
IOWA CITY AIRPORT
DIVISION PERFORMING WORK
r
a
L J
INSTRUCTIONS:
1. The work or equipment services as specified hereon are requested to be performed
for the Iowa City Airport. If the work cannot be performed by your division,
contact the Airport Manager.
2. Upon completion of the work specified, the division performing the work is to
prepare an invoice detailing all labor, equipment and material charges incurred
and forward the invoice along with this purchase order to the Accounting Division
for billing purposes.
QUANTITY UNIT DESCRIPTION UNIT TOTAL
COST AMOUNT
White Copy -Dept. Performing Work
Yellow Copy - Airport AIRPORT MANAGER
OcIty of Iowa Cite
MEMORANDUM
PATI: November 28, 1977
TO: Neal
FROM, Linda
RE: Summary of Meeting on Transient Services, Wesley House, November 28, 1977
Attendance was from the following groups:
Wesley House
Crisis Center
Ministry
United Way Staff and Board
Salvation Army
JCRPC Human Services Subcommittee
JCRPC Staff
University Hospital
Board of Supervisors
City Staff
Coralville City Council
The purpose of this meeting was to determine if a funding formula to provide
services to transients in Iowa City could be developed. The discussion centered
around the Salvation Army's proposal to the City Council for a center at a cost
of $60,000 and their new proposal to provide services at a reduced budget of
$20,000 if the funds can be raised.
Dave Schultz, Wesley House, presided over the meeting. He asked the local
governing bodies present if funds were legally available and if these bodies
could make commitments to provide transient services. I related the City's
history of funding social services programs through aid to agencies.
The ministry felt the Crisis Center has done a good job of referring transients
to the services available in the community. If the services continue, they
would like to see them centralized.
Further discussion centered around communication problems with the Salvation
Army. Representative from the Salvation Army indicated if a center was
developed in Iowa City the policies would be determined by a local advisory
board.
The maximum support from United Way appears to be around $5,000 for the next
calendar year for transient services.
A second meeting was scheduled for December 5 at 10:30 at the Wesley House with
representatives from various agencies. The purpose will be to tie things together
They would like to have a representative from the City Council attend these
meetings.
73
0
City of Iowa Cit
MEMORAND ;;�j
M
DATE: No mb TO: Neal Berlin, City Manager 7\ \I
FROM: Michael Kucharzak, Director of Housing & Inspection Servi e�
RE: Energy Conference/Ames, Iowa %
Glenn Siders and I attended the Energy Conference in Ames, Iowa
November 9th. Although several sessions were being held concurrently,
we chose the one day seminar to get an overview of the proposed Code to
better enable us to decide at the local level what additional training,
if any, would be needed to administer the proposed Iowa City Energy
Conservation Code. Much to our surprise we discovered that the State
Code, which was to be the model for the proposed Iowa City Code, mandates
that in all cities having a Building Official, all new construction
comply with the Energy Code. In addition, all remodeling will require
compliance with the energy standards. The matter becomes further
complicated when we also discovered that the new Code applies to any
changes in occupancy in such a manner that it must be show that the new
occupancy does not create an additional energy demand.
Our concerns are several fold. First, the State Code will not be
available in printed form until mid or late December. The present
timetable would then put the Code into effect around January 3. The
Code under consideration by the City Council does not read the same as
the State Code and also has and effective date of January 1.
Because of the conflicts with state law resulting in a proposed City of
Iowa City Energy Code that is less than the State Code and therefore
illegal, we suggest consideration of terminating any further action on
the City Energy Conservation Code and not to adopt a local ordinance but
rather follow the State Code for about six months or a year to see how
effective it is and at that time to decide what type of ordinance, if
any, should be adopted at the local level.
Another concern of the staff deals with the fact that all construction
is affected by the Code. As you well know, over 90% of all the building
done in Iowa City is single-family home construction. In addition, an
equal percentage of all the permits issued are not issued on prints or
plans developed by an architect or engineer. The State Code mandates
that an architect or an engineer certify the plans regarding their
compliance with the energy conservation standards and that structures
over 100,000 cubic feet in size be sent to Des Moines and filed. You
may also recall that our proposed local Iowa City Code also required an
engineer's or architect's stamp. Our concern is that if we require
single-family home builders in Iowa City who traditionally build spec
homes and who are not architects or engineers themselves to go out and
obtain an architect's or engineer's seal on their drawings, we are going
to add additional costs to building construction. One option would be
Zi/ 741
to have the City perform the energy conservation tests. The exposure
the staff received to the heat loss formulas in Ames was of such a
manner that whereas the formulas are not difficult to perform but are
extremely time consuming and will add a great deal of time to the print
review process. The actual amount of time that will have to be devoted
to this Code is still quite uncertain, however, I would not be surprised
if the demands would be significant enough to require the hiring of a
separate energy inspector.
All the nightmares of this Code are still not known simply because the
people in Ames really did not give us a full indepth understanding of
the Code in the one day session. However, it did become apparent that
the Energy Code is a lot more than we cared to take on in Iowa City.
• •
City of Iowa City
MEMORANDUM
DATE: December 1, 1977
TO: All Department Heads
FROM: Glenn Siders, Sr. Building Inspector
RE: Building permits
Due to an official opinion issued from the Office of Richard C. Turner,
Attorney General of Iowa, the City of Iowa City will be required to
issue building permits and collect fees from said permits to all
structures erected or altered within the corporate limits of Iowa City
regardless of who is doing the work. This will include such entities as
the Iowa City School Board, the County of Johnson County, and the City
of Iowa City.
It was Mr. Turner's ruling that anything erected in any municipality
which incorporates a building code will be required to comply with all
regulatory codes. Therefore, effective immediately, construction permits
must be obtained and proper fees paid prior to starting work. This is
in contrast to the posture the City has assumed in the past and this
memo is to inform you of our new policy and make you aware of our position.
The only exception to this opinion shall be for any State owned building
where work is done by the State, such as projects performed by the
University of Iowa.
If you have any questions concerning this matter, please contact my
office.
'// 7 S
City of Iowa City
MEMORANDUM
DATE: November 30, 1977
TO: Neal Berlin and City Council
FROM: Dick Plastino, Director of Public Work
RE: Bridge Repairs k
Shive-Hattery Consultants is under contract to design the
Iowa Avenue bridge, the Governor Street bridge and the Court
and Muscatine bridge.
Originally, their contract was going to be amended to include
design for the Burlington Street bridge. A very preliminary
investigation indicates the Burlington Street bridge is in
quite serious shape and the amount of money to repair or replace
it will be a substantial capital outlay.
Accordingly, the Burlington Street bridge has been dropped from
consideration for funding in FY79. An investigation will be
funded in FY79.
176
•INDIVIDUAL PROJECT ESTII4ATE5 D-5
CITY OF IOWA CITY
CAPITAL IMPROVEMENT PROGRAM
X A
FY 79 - 83 _ B
C
7
Date November 30 197• Division Project Priority # Rating (X):_ D
Department Public Works Division Streets
Project Title Bridge Repair CIP Div. Code No.
Location (also indicate on map) City wide
Description of Project: Rehabilitation and reconstruction at various bridges throughout
the City. Inspection of Burlington Street Bridge.
A. ESTIMATED COST
D.
IMPLEMENTATION SCHEDULE
1.
Planning:
1. Design & Plan 1-78
Architectural Services $
2. Land Acquisition Date
Engineering Services 20.000
3. Construction Begins 3-78
Inspection
4. Construction Finished In -7R
TOTAL
$ 20.000
E.
STATUS OF PLANS & SPECIFICATIONS
2.
Land:
(Place check mark opposite
(X) No Land Involved
proper status)
( ) Site is Secured
_ 0 Plans not needed
( ) Site to be Secured
$
1 Nothing done exc.this report
2 Preliminary estimate received
3.
Construction: ( )New (X)Rehab.
(X)Replacement
3 Surveys completed
Labor $
4 Work on plans scheduled
Non -Labor
5 Sketch plans in preparation
TOTAL
$ 620,000
6 Sketch plans completed
_
7 Detail plans in preparation
4.
Other Costs -Specify
_ 8 Detail plans and specs complete
8
F.
PROJECT EXPENDITURES BY YEAR
5.
TOTAL ESTIMATED COST
$ 620,000
Prior to: FY 79 275.000
FY 79 620.000
6.
Cost Prior to FY 79 that is
FY 80 1.500.000
included above
$ (
FY 91
FY 82
7.
TOTAL ESTIMATED ADDITIONAL COST
$ 620,000
FY 83
After: FY 83
B. FUTURE BURDEN RESULTING FROM PROJECT
1.Annual Cost: Maintenance,
Repair & Operation $
2.Annual Estimated Cost
of New Staff Required
3.Future Expenditures for
Additional Equipment not
Included in Project Cost
TOTAL
C. ANNUAL REVENUE PRODUCED
From this Project $
G. ESTIMATED LIFE OF PROJECT 20 years
H. FINANCIAL AID
TYPE AMOUNT
( ) Federal $
( ) State
Programs:
$ Project Approval by Department Head
Date
' STATAT OF CAPITAL IMPROVEMENT PROJEONEED I1-6
CITY OF IOWA CITY
CAPITAL IMPROVEMENT PROGRAM FY 79 - FY 83
Date November 30 19 77
Department Public Works Division Streets CIP Div. Code k
Project Title Bridge Repair
1. WHY IS THIS PROJECT NEEDED?
The City has identified the following projects for construction:
1. Iowa Avenue Bridge $153,000
2. Governor Street Bridge 76,000
3. Court and Muscatine Bridge 371,000
4. Repairs to Various Bridges
throughout the City 275,000
875,000
Amount previously budgeted in FY77 275,000
600,000
Inspection fees for Burlington
Street Bridge 20,000
TR—0,000
2. HOW DOES THIS PROJECT RELATE TO THE COMPREHENSIVE PLAN OR OTHER OVERALL PLANS FOR
IOWA CITY?
NA
3. HOW DOES THIS PROJECT AFFECT OTHER CITY DEPARTMENTS?
NA
0 city of Iowa Cit
MEMORANDUM
DATE: November 17, 1977
TO: Neal Berlin and City Council
FROM: Dick Plastino, Director of Public Works
RE: Exceptions to the salt policy
Several new concrete streets have been laid this summer and
it is a well established fact that they should receive only
a minimum amount of salt or even better, no salt during this
winter.
The reason for this is that concrete is continuing to set up
and is constantly gaining strength for several years after
it is laid. The major portion of the strength gain occurs
in the first year and salt can do severe damage to the concrete
pavement during this first year.
Attached is a list of streets we would like to hit with little
or no salt and instead substitute sand or not do them at all.
Most of them are residential streets except for Muscatine Avenue.
We will try to hit Muscatine Avenue with some sand and use sand
sparingly on the remainder of the streets.
If this does not appear a proper course of action please let
Public Works know.
11177
.�rac
City o4 Iowa C�
f MEMORANDUM
OATS: November 8, 1977
TO: Gene Dietz, City Engineer
G�.
FROM: Frank Farmer, Civil Engineer
RE: List of New Paved Streets in 1977 Not to be Salted.
The following is a list of streets that have been paved in 1977:
Muscatine Avenue - Second Street to east of Scott Boulevard.
First Avenue - � block each side of Muscatine Avenue.
Sycamore Street - South 3DO' of paving.
Hamm's Second Addition
Esther Street - from Parkview Avenue north.
Mt. Prospect Addition (Part 3)
Flatiron Drive
Grantwood Drive - from 120' south of Flatiron Drive North.
Hollywood Boulevard - from Grantwood Drive east t 200 feet.
Tracy Lane Addition
Tracy Lane - East 200' and circle.
Sturgis Corner Addition
Sturgis Drive
Orchard Court Addition
Orchard Court
Ty'n Cae Addition
Aber Avenue
Cae Drive
Dolen Place
Burry Street
Page 2 • .
Hawkeye Heights
Petsel Place
Westwinds Addition
Westwinds Drive
Bryn Mawr Heights
Sunset Street - the south t 300'.
Denbigh Drive - Sunset to t 450' north of Hafor Drive.
Penkridge Drive - Denbigh Drive north t 800'.
Wedgewood Apartments
Broadway Street - the South t 500'.
0 0
City of Iowa City
MEMORANDUM
TE: November 29, 1977
TO: Neal Berlin and City Council
FROM: Dick Plastino, Director of Public Wo
RE: Status of land acquisition with Regina' i h School
Don Johnson, who has been hired by the City to appraise Regina
High School land, and myself have met with the Regina High
School Board. It is the concensus of the Regina High School
Board that they are not willingly going to sell any of the
land being looked at by the City.
There was discussion about whether to split the 40 acres of
land.into a north 20 acres and a south 20 acres. The City's
dam would go in the north 20 acres while the south 20 acres
might be retained by Regina as a possible site for a school.
This could not be guaranteed, however, since the school board
periodically changes and it is conceivable the land might be
sold.
At some point in the future the City Council will be asked
whether to proceed with an offer and/or condemnation of the
entire 40 acres or only the north 20 acres.
cc: H19
Al Kleinmeyer
Dave Lundquist
Don Johnson
4//78
November 28, 1977
Dear Sir:
A few months ago the City Council passed an Excavation Ordinance. The new
ordinance has a few changes as compared to our present ordinance. These
are:
A permit must be obtained from either the Engineering
Division counter or the building permit counter before
an excavation begins except in an emergency. We will
begin issuing these January 1, 1978.
Every excavator doing work in Iowa City must file a
certificate of insurance before obtaining an excavation
permit. Normally your insurance agent would mail the
City a certificate of insurance and this would be good
until your insurer cancelled it or you let your coverage
drop. The insurance must be obtained in the amount of
$250,000, $500,000, $100,000.
3. A performance deposit must be posted. You can either put
up $1000 which will cover an entire year or you can post a
cash deposit for each excavation permit. There is a minimum
charge of $100 cash if you wish to put up a deposit for each
separate excavation. Most people doing much work in Iowa
City will probably be ahead by putting up the $1000 cash bond.
The ordinance calls for backfilling with either native material
or sand. If the excavation is under or within two feet of any
type of paved surface the native material must be backfilled in
layers not to exceed six inches and each layer must be compacted
to 90%. Generally sand backfill will be faster and cheaper for
most excavators.
5. Surface repair is similar to the way it has been done for years;
however, all excavations must be saw cut. The Street Department
will continue to try and keep up with asphalt patches; however,
if they get too far behind you may wish to have a private
contractor do the final two inches of asphalting on asphalt
streets. The other major change is that brick streets must be
repaired with brick.
#177
0 -2-
0
If you have any questions concerning procedures please call Marilyn
Collier at ext. 257 in the Engineering Division. Mrs. Collier will be
responsible for inspection of excavations and handling of insurance
certificates and performance deposits.
Sincer y,
> o
Ric and J. Plasttno
Director of PubliclW rks
RJP/jp
cc: City Manager
City Council
PW Division Heads
Marilyn Collier
Engineers
ORIIINAN( P. ,JO. 77-2849
AN OIUANAN(T; 104;MAT!Nr '1111. ()H'NING ANIi 1:•:1'AVA'1'ING OI'
PUBIAC PIA(1:: 111-iplllll N(i A !'1.11MIT API; 1a11'IAI:4I' OF A
1,1•Itl•CALIM.O.: DI9'tl'11'I': I'llvl'I.J,! IIJUIIIlll?.113IIti Hill, '1111.; PIJ)
TRCI'I(IN OI•' I,IhI: A.JI) 1'I1(il'Flrl'i IN (I)NNIVITIq 14'1111 EX01VA
'1'1(N WMK, INCIPHINt'; TRlFFlt ,1`111 1'I.34SI'IIIA.N SAVHAJAIUXN:
lil•GNIATINt; '1111; HACEF111JNG 11141) RE.'i id-ACIN; OF I•NCAVA--
'1'I(NS: AND PUBS III IIIIXi II:iGllalt:'. 1.011. VIOIA'IA(INS of'!11•:i!
111 "l l s ir(JS .
SFATION 1. CITA'1'I(B.
'Mis Ordinance :,hal l hr knox as Ihr ";;1..r+•t. 1'J:Catat.i(rn Ordinance of t.ho City of lima
City, lowa."
SI•XTICN 2. DETINI' IONS.
For the purlx)scs of this Ordinalr',r, Lit,- fol lowing wtlyds steal I have t.h,r uynning I'iven.
A. "Ci ty" shat 1 Mail Une. Ci ty ()I' Iowa ('i ty.
H. "Director" bhalI irx:n the City Manager of the City or, hl::/her nuthoriv.,-d n,pr,r
s-nLativc.
C. "Fxcovation" shall try-in any op.•ning in the surl'aco of :I public place nndr by any
I.nealIti .
1). "Person" shall nran any perr ;on, fine, pariner:ship, ,u;:;iwial ion, _-Orporal ion,
anunicipat department, uxnpcuiy or organiv.ition of any kind.
li. "hiblic Plaut" shall mean any public st.n. t, way, place•, Mloy, :;iduvmIk, bark,
square, plaza, any ('i ty-owned right. -of -way or •my other public proWrty ovaied or
contmIled by the Ci I y of Irma Ci ty and dedicated to publ is use.
F. "Six,clUcaLions" shall mean the latest odit.ion of St.andnnf Slxlell'iCntiOIVa for
Construction on Primtry, Farm to Market, Secondary, State Pai'k, cid Institutional
Roads and Maintenance work on the Pritmry Road System, Ions States Highway Ckxunis-
:;ion, Ames, Iowa.
G. "Substructure" shall mean luny pilx?., conduit, duct, turinel, urnhole, Vault,
buried cable, or wire or any other similar struc•turo Located below thr surface
of any public plare.
H. "I1t.i l f Ly" shal l mean any public ut.il i Ly regulated Dy the lova C'cmrvree Umal s;si.on,
Ixnsons holding a franchise from the City, and other similar persrats.
Sl-VIUCN :1. EXCAVATIC14 11-:161IT
All persons arildng or filling any excavation in any pulrlir. place r:hall I'irsf ohrttin a
permit. f'n,m the Director except as provided iu `c-olion 11). Prrmits shall bu ob:.ained
at laa.,;L the day prior to making an exca:vaLion. No excavation g�nnits are roquirod
for substructure installation in a mm subdivision prior to ac, epLancd of the sl.rO(A.
ing immy•nts by the City.
11 T,111I0N 4. APP111CA'1'I(I4'
No eXca,aLion Ir_nnit shall bu issued unlus:: a wriLteu applicatiou is :;ulmil t- if In Lha
Director on a form pmvidca, Ov the Ci Ly. lbe ❑pplIcal. ion, Or -it apprrved, :;hal I
rwistitute a pp_nnit.
SIXTICN 5. CBRTIFICATIi OF INSURANCE
Ikrl'ore an excavation lymidt. is isxwvl, Lilt, applicant ,Awlj d11x,r;I1 with 1111• (')I./
certificate of insurance in an atinunf, to Ix, det,•nnin,rd by the ('Ity Uxuu•il by n•'>-
lut.ion. 'Ilhe certificate of insuranro shall list. Ov, (,it.-/ -I lawn City, l(Fma, ;,m' II;;
oll'icer.;, ,tlq)loy[r)s and ot;euts, as nddit.iunal mmrirvl inan•,•d.
CIly dap:o•Uu•nl:., ;Ind nt.her poverrmrntal :u' n i, r,, nr(y he r-cliom4i of the
ohligoll)un ,I' r,ub!j0ILin11 :.uch aI ,•,•r I.i l'icitc of in: a-;uwo.
. ,el, /'%
Ord. 7/ -?H49 i
Paye
SPOUP G. PERO RMANCE I )hl t t; l'I:
11•rfunm(rrce it( pt::i1!; ;u•e 1,41Ulrcd I,n• a-•. ,:rare, i, 11 in ., l,n;,l I,I•!c IA•lit tz�tl .
nvprirexl under this sccLi„u shnII h(, ;I r�,:Jt v, r, Iv.
A. I'urjx r;c uf_Iklxni t_;:
All slwxial or onrne(i dgxr;its slIA I r,,•iT,• a:, >;,v unity 1'(',r Lh,• • ,,I
work necessary to put, the puhlic I,L•ne to ;(s goIxl .i condition as 11, w,U; prion t„
the excavation it' the permitter• fail!. t() c((!q)lLL, the cask uruior the oNt;Iv:,l ton
permit.
D. Slx_c.iIt1. Deposits:
the application 1'or an excavation lrnnit slmll he acc(mpatied by It depo:;rt, nude
in accordance with a rate schedule adopted by City Counc;l resolution.
C. Annual. Derxagits:
In lieu of individual spec.iel dopnsils, nny pt�rs,xn intending; to rr b:o excavation:,
in put:lic plau-s shall rmrintain, with the City Tronsurer, an annual deposit. in
amrdanc: with a rate srlxdule adopted by City CUtnlCll resolution.
1). Refund of S)xacial Lxaxrslts:
Upon Director approval of the work c•over•rd by the permil., two-thirds of the-
special
hespecial deposit shall be prnrnptly ruftmdod to the Irnmitt( :, and thu balance
shall be- reIeas(d to the permittee one (1) year later.
1':. Refund or lleduction of Annual Dcposi is:
Upon request, two-thirds of ;uly annual de1xisit shall Ix: rel'undtxl at the and of
the one-year period for which the deposit. is nide. 'ni(,. balancte of the ;mural
deposit shall be, released one yea- later. If no rofund rcquc.^,t is receivod, the
deposit shall be carried over for use a:; the annual deposit the following yetu•.
F. Use of Deposits:
Deposits shall be used to pay tLe cost of any work the Cit.0 txorforms to restore
orfnaintain the public places in the event the IM11111.100 fails to perform t:he
work. 'Dire amunt released to the permittee shall be reduce] by the amount
expended. Work done by the City shall be at uniform t'ees based of labor, arterial,
and overhead expense.
G. Exceptions from Deposits:
Where excavations are made by City deparinymts
a permit may be granted without nmfking such deposit. In such cases, the permittee
shall be liable for the actual cost of any work done by the City in restnrirq;
the area. The City shall, in the future, require deposits from any such pennit.tty:
if a bill rendered in accordance with this section becoores delinquent.
SE MON 7. TRAFFIC CXNf M
fk.) perndttee shall lnterrropt access to and rrrm private progxrty, block emrrr•l mev
vehicles, block accu;s to fire hydrants, fire stations, No., a:calx s, wvter-valv(s,
underground vault:;, v;t.l.vu housing stmetures, or any other vital (xquilinent ;c; dositmated
by the Director. If a stn+,A closing i. requirod, the applicant will request the
assistance and the approval of the Director. It shall Ix: the reslxmsibi.l.ity of t.h(:
permittee to notify and coordinate all excavations with the Police, Fire, and Tran:;it
Departments.
The permittee shall take appropriate nKsrsure; to ws.,mre that U:ifl'10, rc,n(li.Li„ns a:;
near nonnal as pose;ible shall be rrtaintai.nod ;it all timn;.
7ypte I and Type 11 barricades, cu; defined in Perl V1 nl' ihe'I;tjm;tl of Unifonn Trnll'w
Ujntrol Devices, musl. be rc;(xi wlx•never it is necessary to clue,,, n Lraffic l;wo or a
sidewalk. Ra-riccdcs are to lx: supplied by the: l,ennitte. If usvJ at ought, th(:y
test be re_flr_ctorimfl, and mush, be itl,rninntcvl or have har•r•Ica(h• ,yarning lif;hl::
lh'd. 77 •ZEi49 4
Paye 3
Asa nrnor;tl I;uidl• I'ur• ;ell nmiol,•nam• • arnf ron:.Irw I ion •;i1tninit, I;o-I VI ut Ib,•
Manual on IhlifnliliTrlfl'ir•0)1111'1 la•'Ir•i•: :,h. i1 b r,•,I, 'III,- Ix•nnillo• :;I1:li lllusl.ral-
uu I.hr e:x'caval len IX,1110, the w:1111init nnrl enol nJ for u:, , A; Ili-
nNlue-8l. uItho Uirectur, :ouch warninr and tl,-Vl,'.•., t4vil l 1,. 111,'. 1'i aid Yl, dl�a4;1J+1
or mxlifIucI.
Oil flares or korosenr. Ianterms are not lx, ;II I-6!td :w nr•wo; of i I lurninat it
SIGTICN 8. MAIrTION OF PAVI-D SUR ACS FIC..tl IQUII N'I' DkMAGI:
Ilcackhoe ecluilnlc:nL out Hrx.,-rs shal l bx: f i Ll.ed '.VI Lh rublxrr pools a!n:wew:r out rig�f;ern ;.rc'
plac;cd on any paved surNicf•. Tr•aolkeel v,luc h ; ;ire not Ix:midttcd on Iglu,-!
unless specific pr•r,cautions are taken to lav le t Uu: slirraco. 'lair: IN amli tto v;II Irir
responsible for any d:mrig(: to oxistinit pavoir-nl. c auh •,l l,y operation of sural oluipvc-ni.
and, inset order ul' the Dire•caor, shal l repair :;w•h r:nrl';u:es durigcd by c:.Lcavation
aqui plN.nt . Fa i I ore to du sir will ru:.0 I t III use of rho perfortituu:cr deposit to r.:p:Lir
any dwnage.
SN;TIM 9. PIWIFECIAON OF AI1101NING 111UPI-MY
The pxsmittee shall protect from Injury any ad•joininr property by providing wicxquate
support and taking other nec:essa ry measures, 'lite Ix nndt.tce shall, at, hi.:; own exloensu,
shore up and protect all iwildi•Igs, walls, tonnes or other property likely to h
damaged during I:lie c:rcavathm work, and shall be responsible for all cL•urrtgr- G, public
or private property or highways, resulting; from failure to properly protect wul
carry -out excavation work. Failure to follow t.hr- provisions of this section will
result in the use of the fx,rfonmu)ce depnsit. to repair damcge.
SITTIIN 10. RIUCCATICN AND PRC71' URV OF 11FIL,ITIEN
The permitter shall notify the owners of all facilit.ic:s in the cxca%sltion lu•pa at
least one (1) day prior to excavating except as provided in Section 19. 'lhe r,st of
moving facilities shall. be paid by the permittee.
'Ihe permittee shall support ;uid protecL aLl pipet::, conduits, IxIl('!;, wires or other
;apparatus whicli may be affected by the exc:tvat.ion work. Mie px•nnil.lt•e shall deter-
mine the existence of all tinderground facilities within the excavation area by
exposing prior to machine digging and protect the sulx4metun:s tig inst. cL�umtge.
SECTION 11. IIACKFILLING OF I:XC.AVATICYy' Uivl)Ul Oil w11111;1 'IiV'J FI -TY OF PAVU) 21RFACI3
The trenches for all substructures that lie under paved surfaces wed travelel'.Vuys or
within two (2) ltc_A of paved surl:aces shall Ix: backfilled with axeavatei uuterial to
required grade in layers not to exceed six inches (G") and each luyor :;hall Ix-
coml)acted to WA, of modified proctor densi.t.y. Granular backfill neetint, City sfxac;i--
fications nay also be placed by any procedure which results in 90`x, cscpaction.
SL''CI'IM 12. L'ACI:FILLING OF UNPAVi- ARRAS AND PARKWAYS
Excavated soil shall be carefully depxositcd and satisfactorily t.rtttped in raliform
layers not greater than six inches (Ci") in thickness imIJI the ixlrkfI II reaches the
fop of the substntcture. 'Ihe ronainder of the trench shall be Ixtckfillcd in Imifurm
layers not exceeding twenty -tour incdie:; (24") in thicknt:ss, and satisfactorily t;trr�x:d
to within one foot of the surface. The backNi king operation shall c;ontinar• with
:;oil until the backfill remains slightly above by the. ground level. Excess mtLerial
shall be disposed of.
Granular backfill meeting City specifications may also Ix, used; hcnvever, soil shall
be used for the final foot of backfill.
SIr.LTION 13. RET)AIR OF SURFAM
'Ihe Directur may specify the lype of rr w 1;u logo requird for ;wy (,xcavation; ho% -
ever, in the absence of specific direction from the Director, the following; sppr.-
ifi.cations shall be used for resurfacing of an excavation:
A. Iligh tD)fn asphalt streets. Thr paavcnrnt. shill Ix, neatly rvawn one 1'art. CI'1
back from each side of the excavation and rerrrwrcl t.o a depth neccse.vt•y to 1 vetch
undisturb(d subbitse or soil. A coo;cruu, patch cgtml to the thickness of the
oxi':tinl; pavement, but in no cap;o les than :;ix inches (fr"') think, shall IM
placed in the excavation :old brought up U, a point two inches (2") below [hi
final surfare, 'Ihe ;r•nnii too will cox dfl to the oxen nilen with I'M, inetb"s (2")
of ,Lsphnit. 'Ibp col: 'r to pacoh used in e:xravat.ion v.ur'k :,hall I+! an A41 mix a;.d
Shall IrN,YA Section •1:140 nl' the Slxacifieatlon:; (see Srct.ion 2, IY finitions".
Urd. 77-2849
0
41
Page 4
If. ('nllcreLe sLra•1.:;. •Ihr p:lvinrnl •:Ic(II L,
114-:111y •::nsu
:11111 r,mlYrrl
eau• h,0
Im k Il'lxn each side• 11' Ihr ,'.x1':1v:111.n1 I,.
.e IL•pll n1.4-1..,•;;u'y
Io
4-.1•-4-1 andiw111.1rd
:.IOhlasc:;of I. II n , ow, 1rur•I it It � I -•xlaor;ion
•p.IIII f:;
within
fIvl• It .,,1 (G') of
Lhe vdgc of Lir patch, Ile• •;cirlrtee• :dml I
I- r-anvrd large
In (his
joint. A
e�mcr•ete patch I%flulI In Ibr• 111I'luu••a; ul
Ihr I;x l:;l. i n{;
pat•l fix -ill.
but. in nn C:(`.�•
)I;8s than Kix Illrhe :ti W") I'll Ick 4-;11,11 l4-
phicr(I 11`;10{;
a t.14 llllx
111 ae'1•wdalwl-
wfLh Section 42,10 of Ihr Fprril'ir:1! i(,ns.
C. Brick streets. Exeavationr; fn Irick sIni-ts silall be ropa)red ILsfnt; Lh•:
original brick or ot.hrr brick suitable lot, a Lwrveled :;urlace. A six inch ((1")
concreLe hwso :ihall he poured using; ;1 M,I mix. Alx,ve this, a Bawl-c(na:nt (•t1:::11i"a
one inch (I") thick :;hall Ili- ad•jilsted that Minn UI" bricks are pav(,I :utd
rol led the tole surface, of the' bricks wi I I hr at t.h(' n:xluin•(1 I'i.ni:;had gr:••ie.
The joints hetwam Lie brlck.,i shat I he h;ulll t Il;hl, and :;hall Ix: Ito great'(-• than
ono -fourth inch (;"). A dry mixture of oro• part. Rn t:l:uhd rcillont will three parts
sand shall bo b(- .spr(•:ul over the till; (if the patch unt f i the ,joints are rr.rp)lrtel•v
filled. The surface Own shall het I'oj5n( l lightly with water.
0. lrnv type sf,re.r-ts. Winn a :;trer:tcorudsts of :t seal roll, dust seal or other
thin, Jim type r;urf;u:e, an asphalt patch at. least two inches (2") thick shall be
placed. lite :c:phaAL shall be rnllcd with it rublx'r tired vehicle• tmti) a dense:,
tight surfacre is obtained.
E. Sidewalks, driveways,u_rls_tn(1 gllltc_� ether Lruj;
rLIJrc. Whenever :ul c:xeava-
Lion cuts a sidevalk, drivcway, curb and gutter or other st.ructure, the: exrava-
tion shall be hackfiIled.as dese•rilxd in Section II. A nc:U saw cut. slmlI Ix:
made one f(a)t (1') hack I'min each side of 1,110 exc•avntiun to undistur}r!d veil;
however, on sidewalk, the pnvolxrnt: shal l be rrmrved bark to the nparm::t omtruc-
tion or exlxulsfon joint. All broken or SlIall(rl voncret.e or structure rrnterrial
shall be rem)ved and the surface shat l Ix: replaa'd using m1, MI mix in m:cordanm,
with Section 4240 of the Specifications.
F. Parkways and other unpaved :ureas. Ihr surfaco of cul LIvafed grass areas sLaII
ba set. -Jed. It is the responsibility of the pemittre to establish a gexxl st:uld
of grass. Tie area shall bra left. fro: firm debris and clods. Olt steep mt)ank-
rnonts or upon request of the Director, rxxI or other erosion control teclmiqu•ts
shall be used for restoration.
G. Saw Cut's. All Saw cuts aro to be nide to a depth of two inches ('l.") or dceprr.
The ramindor of the slab :;hall be broken off Ix:low that Ix)int. in a vert ical
plane. Saw cuts shall form it rcctnngle around the excavntfon.
11. Boring or other metho(Ls to prevent rutting; of ptvmxmt will be nguirtd tipm
requcxt of the Director.
SIiC,TION 14. ME, OF M.1111710N
All excavation work and backfilling c'overod by 1110, PLlvlit shall Ix: owpleted in it
prrnlpt rrcutner its determined by the Director. After cempletirm of the ex(,imition :u1d
backfill weir!, restoration of the surface shall he empletod within fourteen (1-1)
days unlcxis a time extension is granted by the Diroclor.
SUM114 lb, NOISE, DUST AND D11311IS
U'arh permittee shall conduct excavation work in such Iremnor as to avoid unnocrs:;nry
Inconvenience and annoy:mcr, to the general pull fc :Incl occupants of neighboring
property. In the perforinlnce of the excavation w+,rk, t.ho 1x:rmittce ShalI t:Lke
appropriate m!;tsures to r(xluce noise, dust. mid unsightly debris. No lw'rk Shal I ho
done betwo m the hours of 10:00 P.M. and 0:00 A.M., c:xc,pt with the express written
permission of the Director, or in case of ;u1, (tlx'rgency.
SlITION 10. iNSPICTRV
Ran(km inspections mry be mule of prol!idur(s d,•srrilxd in Lhi:; O1'dln;LIWt' Will th(a
penni.ave.. shall (x)vrect his pr(Nrdurc if' so or•Ile'rrd fly the Di r,•c Lor. Ftli 111 re trig do
so will result in Ilse of Lho perl'ormulee d,•1x,si t to vor•csa (,r crmplL•tp 'M,rk.
SIXTION 17, UJ.AN-01)
As the r:xc nation work progr'esso:;, ;it I pull f0,. rip,hL-nf-say!; :I1)11 private prolx-rt i4-:;
shall h,: thorollghly r•lean(:rl of all rul,hi:,h, 1•x01-,,; ea.rlh, rodi and othor debrfr All
cloth -up olx:I:Itionrl rrhnl1 le clone at t.he• r,:p1•n -et' Ute lx'tnhil Ler. If Ihc' Ix'naiIUx,
fails to ele;m-up within Iwx•nIy-ifin I- ("I) hour-; :1ff(,I, not Icc-, the 1)1rr:rfor :;hnl i
authorise tltr: wont dolor. Such wolf, sh;111 14- pai(I for• wIt,h LI e ir•rfor•rnice dep,!,I .
.Ord. 77-2849 • •
Page 5
61-UTIO4 18, 7'1114011•:; 1N 11I11K l HYING
Except by special permission Irco Ow Dir,xlo•, nu Irrnch tilmlI lx; excaval.od nnre•
than 300 feet in advance u1' Piro 1:101l; rnrr• l, -f I unfi l ltsi tit re than 100 fret who
pipe hits been laid.
Sjrrl N 19, ETUMI-INOY IJICAVATICN
!)thing in this Ordinance- shall be construed ler prevent excavations that tiny le
necessary for the irmrdiate preser•vat.lon of 1 ill, (it, pnrlxtrty. The perxm ntrkinp:
excsrvation shall apply to l,he Director for, it permit on the first working day after
such work is camnenctsi.
SWrICN 20. PJ11SE1NATIM OF MaUflNM
The permittee shall not disturb any surfaci� nnnuments or hubs fowtd on the line of
excavation work unless approval Is ohtainc.l from the Director.
SI=I(N 21. PLTIALITIES
Any person violating any of the provi>:1ons of this Onlinance, upon conviction, s:Lail
be punished by a fine of not less than five dollars ($5.00), nor time than one
hwrdred dollars ($100.00).
SE)MCN 22. REPEALER
Section 9.60.3 of the Ahmicipal Code and all of Ordinances or parts of Ordinances
in conflict with this Ordinance, are hereby repealed,
SECTION 23. SAVINGS CLAUSE. If any section, provision or part. of the Ordinance shall
be adjudged to be invalid or unconstitutional, such tuijudicaLion shall not affect
the validity of the Ordinance as a whole or any section, provision or part therrof
not adjudged invalid or unconstitutional.
SION 29. EFFWrIVE DATE. Tltis Ordinance shall be in effect after its final
passage, approval and publication as required by law.
It was moved by Perret and seconded by Vevera
that the Ordinance he finally adopted, mrd upon roll call there were:
AYES: NAYS: ABSENT:
x
Balmer
x
dePt»ssc:
—_
z Foster
x
Neuhauser
X
Perrot
X Selrrr
_
x
Vevera
�lyor I 11 ,ala
�l , 6tt•
City Clerk
First Consideration 7/5/77
Vote for passage: Ayes: Balmer, deProsse, Foster, Neuhauser, Perret, Selzer,
Vevera. Nays: none.
Second Consideration 7/12/77
Vote for passage: yesSe,Foster, Neuhauser, Perret, Selzer, Vevcra,
Balmer. Nays: none
Date of Publication
Patised and approved this 26th LjaV of July 1977.
RECEIVED & APPROVED
By W JXGAL DEPARTMENT
S-.7 1 l
,
W.ESOLUTION NO. 77-265
RESOLUTION ESTABLISHING REQUIRED INSURANCE AMOOTS
AND PERFORMANCE DEPOSITS FOR ORDINANCE REGULATING
THE OPENING AND EXCAVATING OF PUBLIC PLACES
WHEREAS, Section Five of an ordinance regulating the opening and
excavating of public places requires that the City Council shdll, by
resolution, determine the amount or coverage of a Certificate of Insurance
to be deposited with the City by persons desiring to open and excavate in
public places, and
WHEREAS, Section Six of the said ordinance requires the City
Council, by resolution, to adopt a performance deposit schedule !or persons
desiring to open and excavate in public places.
NOW, THEREFORE, BE IT RESOLVED BY THE COUNCIL OF THF CITY OF
IOWA CITY, IA:
1. That the following requirements are hereby established for
Certificates of Insurance to be posted by persons desiring to open and
excavate in public places:
a. Two Hundred Fifty Thousand dollars per person for
bodily injury liability.
b. Five Hundred Thousand dollars per accident for bodily
injury liability.
c. One Hundred Thousand dollars agregate for property
damage liability.
2. The following performance deposit schedule is hereby
established:
dollars.
a. For special deposits
1. For the first 100 feet or less - One Hwidrerl dollars.
2. For each additional loo feet or less - One Hundred
3. Minimum deposit - One Hundred dollars.
Res. 77-265
Page 2
b. Annual Deposit
1. For all excavation - One Thousand dollars.
It was moved by Balmer and seconded by Vevera that the
Resolution as read be adopted, and upon roll call there were:
AYES: NAYS: ABSENT:
x BALMER
X dePROSSE
x FOSTER
x NEUHAUSER
x PERRET
x SELZER
x VEVERA
Passed and approved this 26th day of July 19?1.
Mayor
ATTEST: C� �
City Clerk
RECEIVED & APPROVED
MCAL DEPARTILUY
0-1 2211-1 Q f3
0
0
CITY OF IOWA CITY
CIVIC CENTER 410 E. WASHINGTON ST IOWA CITY IOWA 52240 (319) 354.180D
Dear Iowa City Resident:
As part of the effort to conserve valuable resources and prolong the
"life" of the City landfill, the City will conduct a pilot project to
recycle aluminum and steel cans, in the Normandy Drive area. The pilot
recycling project, scheduled to run from late November or early December
until early next summer, will enable us to determine if it is worthwhile
to recycle cans city-wide.
The can pickup will take place the same day as the regular refuse pickup
by the municipal crews. All you need to do is place the aluminum cans
and the steel cans in separate paper or plastic bags near the other
refuse for the weekly pickup. We would appreciate it if you would rinse
and remove any paper from the cans because the City will get a better
price for them; and if you crush them it will save room in our trucks.
Enclosed is a card; please return it so that we will know how many
families are willing to participate in this project. If you are willing
to participate, please also answer the questions asking if you are
willing to rinse the steel cans (soup cans, vegetable cans, etc.), strip
all paper off the cans, and crush the cans by stepping on them or by
some other means.
Sincerely,
-i,," c . &Utl&e.�
Mary C. Muhauser
Mayor
MCN/ls
IW 30 I
CITY OF
1111.1? 410 l WASI IINUON SI
November 29, 1977
Normandy Drive Area Residents
Dear Resident:
0
OWA CITY
1OWn CI I Y UWA 52240 (319) 3!A V'�t 0
Starting December 12 the City will begin picking up steel and
aluminum cans every Monday for recycling.
If you wish to participate in this program do the following
things:
1. Place the aluminum cans in a separate sack,
bag, or box. You do not need to smash the
can but this will save room if you do so.
2. The City will also pick up steel and tin cans.
This is the type of can that most canned goods
come in. You do not need to smash, rinse, or
tear off the labeTTut it would be nice if you
could at least smash the can to save room. Once
again you will need to place these cans in a
sack, bag, or box.
3. Remember that the aluminum and steel cans must
not be mixed.
We contacted 125 residents in the Normandy Drive area. Seventy-five
of you responded to the questionnaire and almost all indicated a
willingness to recycle aluminum and steel cans.
We will use your area to determine whether it is economically feasible
to recycle aluminum or steel cans. If the finances look good it may
be possible to turn it over to private enterprise.
If you have any questions concerning this program, please call ext. 264.
Sincer ly,
Richa Plastino
Direc of Public Works
yicw
• City of Iowa CiY
DATE: Novenber 30, 1977
T0: Honorable Mayor and City Council
FROM: Angela Ryan, Asst. City Attorney
RE: Urban Renewal Houses
On Novenber 22, 1977, John Hayek informed you that we felt a need to
pursue legal remedies with regard to houses that were nnved from the
Urban Renewal area. At this time, I would like to provide you with more
detailed information.
In 1975, three houses which were located at 12 W. Court St., 7 W.
Burlington, and 122 E. Court were sold to Max Yocum. A house located at
120 E. Court was sold to Damian Pieper and a house located at 330 S.
Capitol was sold to Bill McDanneld. In R.II.A. 7209.1 of the Federal
Register, it states that the City must sutmit to the Department of (lousing
and Urban Development a description of the steps it will take to prevent
the moved structure from creating a blighting influence and the require-
ments relating to compliance with local erodes and regulations which are
to be made a condition of their relocation.
The contracts contained a provision that the City would supply a list
of deficiencies which the buyer must remedy within six months.
It also provided that the buyer shall secure a Certificate of Occu-
pancy prior to occupying or holding out the property for occupancy. Four
of the houses are presently occupied without a Certificate of Occupancy.
Max Yocum moved two of the houses to lots awned by his daughter,
Patty Yo�un. The one at 913 N. Gilbert is occupied by tenants and the
Yocum occupy the house at 919 N. Gilbert. Ile sold the gird house to
John and Vivian Raftis and moved it onto their lot at 1900 N. Dubuque.
Mr. Damian Pieper moved the house to 35 Ventura Avenue and is pre-
sently occupying it. Mr. McDanneld sold his house to Charles Elmpuist
and it is located at 1613 Broadway and unoccupied.
On August 15, 1977, Bruce Burke, a housing inspector for the City,
inspected the five houses and found that none of them met the minimum
housing code. Ile sort a Notice of Violation to the owners. Mr. and Mrs.
Raftis appealed his order to the Housing Appeals Beard and the order was
affirmed.
The City is seeking relief on three theories. It is asking for
specific performance of the ontract which requiral that all houses he
brought to ode within six months and that a Certificate of Occupancy be
obtained prior to occupancy. It is seeking enforcement of the order of
the Housing Inspector which was affirmed in one case and not appealed
from in four cases. Thirdly, it seeks ocnpliance with the Uniform Build-
ing Code which requires novel houses to meet- new house standards.
4(/8/
0 IV IV 'i'/, Inc. 0
2/l48.%rmo�o�il �2. �o.;;.z�it�, �occra 522/0
Noel W. Willis .%fe iliom 319-36-1-2466
President
November 28, 1977
Mr. John M. Hayek
City Attorney
110 East Washington Street
Iowa City, Iowa 52240
Dear John:
As you know, I have been a member of the Board of Review for a number
of years. This board, which is appointed by representatives of the City,
County, and School Board is charged with certain responsibilities
relating to equalization of property assessments.
I am a majority stockholder in both NNW, Inc. and Security Abstract
Company. These firms have done business and will do more business with
the City of Iowa City, Johnson County, and bidders and/or contractors
interested in Urban Renewal property. None of this business has ever
related to assessment decisions of the Board of Review.
However, I wish to know if a conflict of interest does exist in your
opinion, because if it does, I shall tender my resignation from the
Board of Review forthwith.
I shall await your response.
Siincerely,
wx-�
Noel W. Willis
DEC 11977 DD
,L,L; kOLFUS
CIT( CLERIC
0 0
HAYEK, HAYEK & HAYEK
WILL J. HAYEK ATTORNEYS AT LAW
JOHN W. HAYEK 110 EAST WASHINGTON STREET
C. PETER HAYEK IOWA CITY. IOWA 52240
C. JOSEPH HOLLAND November 30, 1977
Mr. Noel W. Willis
2418 Towncrest Drive
Iowa City, Iowa 52240
Dear Noel:
Thank you for your letter of November 28th requesting an
opinion concerning whether or not serving as a member of the Board
of Review would conflict with possible work that you, through your
corporation, or Security Abstract Company might have in connection
with urban renewal.
AREA CODE ]IS
337.9606
In my opinion although the Board of Review is in part appointed
by the City of Iowa City it is not an agency or commission of the City.
Further, the Board has absolutely no responsibilities with respect to
the administration of the urban renewal project. I therefore do not
believe that you have any conflict of interest.
JWH:vb:14
cc: City Council
very truly yo rs,
4W.
Hayek
F� L EDD
DEC 11971
AGlri:7 --i OLFU5
C 'c` CLLi;IC
0 0
City of Iowa City
MEMORANDUM
DATE: November 30, 1977
TO: Abbie Stolfus
FROM: John Hayek
RE:
Dear Abbie:
Enclosed please find a copy of a letter to me from Noel Willis
dated November 28, 1977, and a copy of my letter to him dated
November 30, 1977.
Would you please make copies of both letters and submit them
to the Council.
Thank you for your cooperation.
vb:14
Enclosures
.lAHayek
� d EIF C
DEC 11977
CTI CLERK
. i WCEIVED 1i1117 ' ; 1377
ZUCHELLI, FWNTER & ASSOCIATES, INC.
URBAN ECONOMICS" PE%ELOPMENT PROGRAMMING . FINANCIAL ANALYSIS
/1 MARYLAND NATIONAL BANK BUILDING
�,
,{�N-^' 160 SOUTH STREET
C' 1 --- C 0ANNAPOLIS. MARYLAND 21401
I(301) 269-6565
November 15, 1977
Mr. Neal G. Berlin
City Manager b
410 Washington Street
Iowa City, Iowa 52240
Dear Neal,
I enjoyed my recent discussion with City Council regarding
Prospects for an Economic Development program. Some thoughtful
questions were asked, and I now have a better feel for issues and
values which seem to be important. I hope my presence was help-
ful to Council in deciding how to proceed.
I concluded several things from the meeting:
• The issue of "whether or not" city government should be
more actively involved in economic development is a non -
issue. There seems to be a general concensus that city
government should move ahead with some type of economic
development program.
• Policies to guide the city's economic development efforts
are not in place. These should evolve through the city's
normal procedures of analysis/debate/policy adoption.
Several members seem to feel this could be accomplished
fairly rapidly, perhaps as part of the forthcoming pro-
cess related to the comprehensive plan.
• Prevailing community values and some concerns regard-
ing industrial development seem to indicate the need for
some public education regarding economic development --what
types of actions are typically accomplished under economic
development programs, and the extent to which public policy
and local government can control (or shape) decisions which
are made primarily in the private sector.
• A "game plan" on how to proceed with the evolution of a
public sector sponsored economic development program i:;
necessary. I have included some suggestions below.
y163
�ZUCHELLI, H•TER & ASSOCIATES, INC. • -2
Mr. Berlin November 15, 1977
Regarding policy formulation, I suspect some general economic
development goals and objectives can be debated and adopted in the
comprehensive planning process, and this seems appropriate. From
my experience in other communities, however, I would expect that
detailed programmatic policies (adopted statements that clearly
establish program priorities and limit certain undesirable options)
will take much longer to prepare and quite possibly could be the
subject of extenstive public debate. Therefore, if there is a
desire to get beyond rhetoric and into action in the immediate
future (say, the next one to three years) the two -fold approach
recommended in our report continues to make sense to me.
In summary, that approach is as follows:
• Begin the process of policy formulation in conjunction
with the comprehensive plan, discussing issues such as
the amount and type of overall economic growth desired;
growth limitations in existing industry; types of new
industry desired and not desired; quantified objectives
expected to be accomplished; degree of commitment of
city government; appropriate relationships with other
organizations/institutions; etc.
• In parallel, launch the market analysis and industrial
targeting process which we recommended, with an action
rather than research approach, so that city government
is in the posture of getting down to business and doing
something about economic development, while talking about
it and establishing an appropriate policy base.
This two -fold approach should trigger the positive response
from the local business community, as well as the University, as
it demonstrates seriousness about economic development. The action
oriented work will also yield periodic conclusions which can reflect
back upon policy formulation, and vice versa, making the entire pro-
cess more dynamic and potentially more effective. Also, the rate of
accomplishments in the action oriented work will not be so fast so as
to preclude policy options (e.g., the Council should not worry about
a rendering plant coming to town before policy can be passed prevent-
ing this).
If there is general concurrence that this approach seems
reasonable a logical series of next steps would be as follows:
1. Z11A prepare a Scope of Services, schedule and budget
for the market analysis/industrial targeting work. With a "go
ahead" from you, I could have this on your desk within two weeks.
• -3-
f ZUCHELLI HUNTER & ASSOCIATES, INC.
Mr. Berlin November 15, 1977
2. City staff takes steps to include an economic develop-
ment component in the comprehensive plan. Extensive original
analysis need not be required (I assume some type of economic
overview is already included). General policies for economic
development would be included, in conjunction with other city
policies related to growth and development.
3. If appropriate, an economic development advisory com-
mittee could be appointed by the Mayor and confirmed by Council,
drawing from the leadership of local government, the University
and business community. This group might be limited to 10 to
15 "top -leadership" individuals, whose charge would be to work
with ZHA on the market analysis/industrial targeting work, and
formulate more detailed economic development policies and program
directions for eventual Council consideration. I recommend a one-
year "sunset" provision for this group, unless it decides a new
permanent organization or longer existence is appropriate.
I would be pleased to discuss the type of individuals
appropriate for this group, and help formulate the language of
their charge. This type of device has worked successfully in
other communities where there is a desire to have broad-based
participation in the economic development policy formulation pro-
cess, and also ensure that leadership of the business community
and key institutions is involved. Periodic checkpoint reports
to Council can be included in their charge.
There may be other additional steps which are appropriate
at the outset. I will be happy to discuss these with you at your
convenience, and am standing by to respond to further instructions.
I hope things continue to go well in the downtown development pro-
gram.
Sincerely,
ZUCHELLI, HUNT. - TEJ, INC.
Vice President
DEIN jg
cc: Paul Glaves
�J
Report to: ?ark 6 Recreation Commission
From: Bob Lee (Fa-fi'
Re: Family and Co -Recreational Opportunities
November 16, 1977
The following is a list of family and co -recreational activities presently
available in the Iowa City Park and Recreation system. Should you have any
questions concerning the list please contact me or any member of our staff.
1. Family nite activities at the Center Sunday 6 - 8 p.m.
2. Family nite activities at 5 schools Jan -March selected evenings.
3. Family table tennis tournament.
4. Johnson County tennis tournament.
5. Roller skating on Tuesday evening 6-8 p.m.
6. Bus trips
7. Volleyball on Friday 8-12 p.m.
B. Halloween Parade
9. Blue Grass and Old Time Music jam session 2nd Sunday 1-5 p.m. in Center.
10. Co -Recreational volleyball league at South East Jr. Hi. 8-11 p.m. Wed.
11. Ice Skating.
12. Swimming.
13. Drop-in use of Center
14. Archery at Center and at Hickory Hill
15. Water safety instruction at City Park pool
16. Pre-school swim class
17. None -Such Fair
18. Golden Age Jr. -Sr. pot luck dinner -dance
19. Very Special Arts Festival.
This second list is a group of ideas staff is considering for the future;
any other ideas are always welcome.
1. Snow sculpture contest.
2. Mixed doubles tennis league
3. Mixed doubles racquet ball league
4. Co -recreational softball league.
5. Chip -N -block tennis tournament
6. Family hobby show
7. SPI family night every other month.
8. Family photo class
9. Family basic water safety class
10. Family combination 50 mile swim
11. Potpourri family class in skills and program introduction.
The availability of elementary schools for our evening use is:
Horn - M,T or Th. Mann - M or W Hoover -not available
Lemme- M Roosevelt -M Lucas -construction
Longfellow -W Wood -M Twain -not available
Sabin -no evening Shimek-no evening Lincoln -no parking
custodian custodian
y/8
0
0
•T/ /�/• RECREATION CENTER, 770! GILBEN]
64 IOWA CITY, IOWA 57740
�!`� 319 338 5497
November 7, 1977
l�ieME' aaEY+
Robert A. Lee
Superintendent of Recreation
City of Iowa City
Iowa City, Iowa 52240
Dear Bob,
Due to unforseen family responsibilities 7 must regretfully submit my
resignation from my position as Recreation Supervisor for the ASERP program.
I would like my resignation to take effect November 30, 1977.
I feel privileged to have been associated with a professional staff of
such high caliber as the people who work in this recreation department.
I found the responsibilities of expanding and supervising the After School
Program to be challenging and exciting. Your encouragement and leadership
enabled the program to break ground in new and different areas.
I wish you continued success and I am sure that under your leadership
new and innovative areas of recreation will be initiated.
Sincerely,
Jean Spector
Program Supervisor
,!1
•
C�
• HE CREAT ION CENTER, 77O S GILBERT
IOWA CITY. IOWA 5
77dO
ED
6(((319]]85497
September 7, 1977
Mr. Robert A. Lee
Superintendent of Recreation
City of Iowa City
Iowa City, Iowa
Dear Bob,
It is with sincere reluctance that I inform you of my resignation as
Program Supervisor effective September 20, 1977. My tenure with the Department
has been a most fulfilling experience with what I believe is the best Recreation
Department in the state.
I will be leaving in order to take the position of Director of Parks and
Recreation for the City of Waverly. It will be a new and challenging position
for me and I am anxious for the new job to begin.
I wish you continued success in the future, and feel that with the professional
leadership provided the Department will continue to be an example for other
cities to follow.
Sincerely,
Michael Unger
Program Supervisor
MU:Pj
y�gs
parks & recfeationo
M
department - _\41
to: Dennis Showalter, Director from: Billie Hauber, Superintendent of
Cemetery -Forestry
re: November Monthly Report date • December 1, 1977
(Please note: this month includes three days of October not previously
reported due to Superintendent's vacation)
I. Operational
A. Interments
1. Ashes
1
@
$25
$ 25.00
2. Holiday Interment
1
@
$145
$ 145.00
3. Saturday Interment
1
@
$145
$ 145.00
4. Non-resident weekday
1
@
$250
$ 250.00
5. Regular weekday adult
2
@
$125
$ 250.00
B. Lot Sales
2
@
$175
$ 350.00
2
@
$210
$ 420.00
TOTAL INCOME
1,5 5.00
C. Lots re -purchased
0
$ 00.00
•
TOTAL PAID OUT
0.00
II. Maintenance
A. Forestry (inside Cemetery) - 9.5 hours.
B. Forestry (outside Cemetery) - 8 hours.
C. Cemetery (general grounds maintenance) - 232.5 hours.
D. Cemetery (general shop & office maintenance) - 19.5 hours.
E. Preventative maintenance (vehicles, mowers, etc.) - 54 hours.
F. Lot locations, sales, and related records - 71.25 hours.
G. Outside snow removal and/or ground maintenance - 14 hours.
H. Funeral time (regular) - 78.25 hours.
I. Funeral time (overtime - actual hours) - 12.8 hours.
TOTAL = 487 hours
Ill. Budgeted Items and Special Projects
A. Budgeted Items
1. Replace pre -season holiday flowers - .5 hours.
2. New peony beds - 15 hours.
B. Special Projects
• 1. Water meter on Brown Street - 2.5 hours.
TOTAL = 18 hours
y tf%
0 0
Cemetery -Forestry Division
November Monthly Report
Page 2 •
IV. Contracts and Specifications
A. Forestry:
1. Contract 78-8710#3 (completion date is March 6, 1978) - Larimer
Tree Service - started work, Noel's Tree Service - no action.
2. Contract 78-8710#2 (completion date is December 2, 1977) -
Noel's Tree Service, expected to complete on time.
3. Contract 78-8710#1 - Noel's Tree Service, completed.
4. Contract 78-8710#5 - specifications and list started.
B. Weed Ordinance - no action during November.
C. Plant replacement on city streets - waiting for Bell Telephone cable
location.
D. New Cemetery water line - no action during November.
E. New Cemetery roof - contract let, details in December report.
V. Special Projects - Superintendent
A. Budget for FY 79.
B. Complaints resolved during November:
1. Forestry connected - 11. •
2. Weeds - 2.
3. Complaints currently outstanding - 11.
C. Meetings:
1. Staff - for Director.
2. Snow removal with Public Works.
3. Community Technology Initiatives Program.
D. Seven genealogy requests - 10 hours.
E. Cemetery policy problems - awaiting decisions:
1. Non-resident definition and fee.
2. Cemetery Sunday and holiday fee.
F. Forestry policy problems:
1. "Perpetual Care" of street R.O.W. concerning stump removal cavities.
G. Weed policy problems:
1. D.O.T. mowing policy on #218 South.
VI. Efficiency Report (crew's time only)
A. Regular duties - 487 hours. •
B. Special duties - 18 hours.
C. Rest periods - 33 hours.
TOTAL = 538 hours (5% of crew's actual working time spent outside Cemetery)
parks & recPeation
department
MI M0
to : Dennis Showalter, Director from: Bob Lee, Superintendent of
Recreation
re: November Monthly Report date • December 1, 1977
A. Administration
1. Jean Spector, ASERP Program Supervisor since August of 1976, resigned
effective December 1. The job will be filled as soon as possible in
December.
2. Work was started on the elevator with a dust partition built around
the main stairs.
3. A new partition was built by Park Division personnel at the north end
of the social hall to provide a storage area for items to be displaced
by the elevator project.
4. Marilyn Levin talked about art to the University Recreation Programs
class on November 17.
5. David Byrd and Bob Lee talked about swimming pool design to the
University Facility Design class on November 17.
6. Judy Olson about swimming pools to the University Facility Management
class on November 30.
7. Bob Lee met with Harry Ostrander of the University Division of
Recreation Services regarding possible coordination of services.
• 8. Steven Delaney began work full time on November 1 as a Center custodian.
B. Physical and Aquatics Activities
1. The West High School gym is now open on Sunday afternoons for basketball
and volleyball.
2. Men's basketball leagues began play with 14 teams.
3. Men's volleyball leagues began play with 21 teams.
4. Women's volleyball leagues began play with 12 teams.
5. Co Rec volleyball leages began play with 6 teams playing at Southeast
Junior High.
C. Special Programs
1. Fall activities terminated and special things are planned for December
with resumption of regularly scheduled programs in January.
2. December plans include a holiday decorations workshop on December 3
and December 10.
3. A holiday party for children will be held on December 16.
4. The Goodtimers will have a dress -up holiday dance on December 21.
5. The "Art of Clowning" clinic held on November 5 was attended by six
people.
6. Jan Lown is the general chairperson for the Very Special Arts Festival
being planned for April 29. Much advanced planning will go into this
affair, which will have nationally endowed funds.
D. Cultural and Social Programs
1. Calls to children from Santa are being arranged with the Sunrise
Optimist Club. Children will receive calls on December 17 and 18.
2. Santa suits are again being rented to local non-profit groups in December.
qls
0 0
Park Division
November Monthly Report
Page 2
3. A trip for 35 senior citizens toured Iowa City on November 9.
4. The Fred Waring trip to Cedar Rapids attracted 20 people.
5. The dress rehearsal of West Side Story at Hancher was attended by 55 senior
citizens through our efforts.
6. The bus trip to Chicago to visit the Museum of Science and Industry was
attended by 41 people.
7. A bus trip to Rock Island for the Holiday on Ice show is scheduled for
December 3.
8. ASERP terminated the fall session before Thanksgiving.
9. Golden Age Christmas parties are scheduled for December 15 and 22.
/ef
•
is
0
parks & recreation
MT
� 0,department 1V1
to : Dennis Showalter, Director from: Bob Howell, Park Superintendent
re. November Monthly Report date • December 1, 1977
I. Work Projects (park areas)
A. Started cleanup operations of the Sand Road park property.
B. Completed fall preparation of flower beds - cleanup, mulching, and
tilling.
C. Cleaned and mowed garden plots at Wetherby Park.
D. Hauled in park benches and picnic tables for repair and winter storage.
E. Completed installation of practice board and fence at Mercer tennis
courts.
F. Completed City Park and Villa Park tree planting project.
G. Completed leaf removal and storage for compost.
H. Repaired skating ramp by Shelter 13.
I. Planted 16 6'-B' pyramidal arborvitae along south side of Mercer
swimming pool.
J. Graveled and graded all parking lots.
K. Replaced fiberglass rock climber on Miracle Frontier Action Center
play equipment.
• L. Installed wall divider in Recreation Center social hall.
M. Built 24 trash can racks.
N. Cut back roses and covered for winter.
0. Dug and stored canna bulbs.
P. Started snow removal and sanding operations on Friday, November 25.
I1. Work Projects (other areas)
A. Washington Street pruning and sodding - 21 hours.
B. Downtown cleanup - 14 hours.
C. Urban Renewal snow removal - 19.5 hours.
III. Administration, Miscellaneous
/ef
E
A. Budget meeting with Director - November 2.
B. Parks and Recreation Commission meeting - November 9.
C. Winter snow removal meeting - November 22.
D. Opened bids on shelters for Willow Creek and Wetherby Parks -
November 17.
E. Bid opening for new tractor November 22.
F. C.T.I.P. meeting - November 22.
All
0 0
FINANCE DEPARTMENT ACTIVITY REPORT
OCTOBER 1977
I)HPAVIM11WAL GOALS
I. To evaluate the use of City -owned or leased computer equipment and provide
written recommendations to the City Manager:
Extended sessions held with .Johnson County's data processing manager to
obtain information regarding the status of the county's data processing
system and, among other topics, the feasibility of joint use.
Discussions were also held with computer vendors to establish costs of
DP equipment applicable to City use.
Discussions also continued with Bruce Ilemminger of the University Computer
Center to summarize and analyze information in preparation for formulating
final recommendations.
II. To complete a City risk management evaluation:
The City Council approved the Risk Management Policy for the City and work
has begun on setting up the Safety Committee and the Accident Review Board.
III. Implement an efficient and economical City microfilming program which would
reduce archival storage space, facilitate retrieval, and allow second copies
of valuable records to be economically reproduced and stored for safety:
Work suspended until November due to diversion of efforts to the evaluation
of Word Processing equipment.
TV. Implement an accrual accounting system for all City funds:
Work continued on the implementation of accrual accounting.
V. Improve the collection of utility billings:
Planned Activity:
- Evaluate the present utility deposit which is inadequate for coverage
of one bi-monthly billing. Recommendations from a preliminary meeting
were forwarded to the Director of Finance for consideration.
- Implementation of a new procedure with apartment owners/managers which
would discontinue the $5.00 connection fee when each tenant moves if
water service will be continued by another tenant. The owner would
notify the Utilities Division when an apartment is rented or a tenant moves.
Discussions will be held to decide how best to inform apartment owners/
managers of this possible option.
FINANCE A(7TVITY REPORT -2- OCTOBER, 1977
ADMINI.MMNON SUBGOAL. ACTIVITY
Activity for the month of October included discussion with department and
division head on FY 79 receipts for their respective areas; completion of
the decision package and planning of the budget format for FY79.
TREASURY SUBGOAL ACTNITY
l) Treasurer worked with the Admin. Asst. on budgeting receipts for
FY79, Treasury goals and objectives and expenditures.
2) U.S. Census report complete
3) Work not completed on retention schedule as federal retention manual
did not offer specific guidelines. A listing supplied by the Director
will be used to complete a schedule by January, 1978.
ACCOUNTING SUBGOAL ACTIVITY
1) Extensive time spent on conversion of payroll system to a bi-weekly basis.
2) Worked with FUD on audit exceptions and close-out procedures.
PURCHASING SUBGOAL ACTIVITY
EDP Projects:
- worked performed on bi-weekly payroll
- preliminary work on encumbrance/accrual system
- work performed on union negotiation modeling program
- routine troubleshooting on utilities and landfill billings
- budget worksheets
- miscellaneous projects, such as U. Heights mailing labels
Bids:
- time spent on drafting, receiving and evaluating bids for 2 -year City
Uniform Contract, as well as various nursery stock, tree trimming and
equipment bids.
CITY OF IOWA CITY
CITIZEN INPUT SURVEY QUESTIONNAIRE DATA
MONTH OF Augugt� 1 cr
NUMBER OF QUESTIONNAIRES MAILED 203
NUMBER OF RESPONSES RECEIVED 36 17.7 %
00 YOU REGULARLY RIDE THE CITY'S TRANSIT SYSTEM
Yes 7 22.6 %
No —7-7.-4%
NUMBER OF REQUESTS MADE WITHIN THE PAST YEAR FROM THE FOLLOWING DEPARTMENTS:
Animal Control 5 City Assessor 1
Code Enforcement 3 City Clerk 1
Fire 1
Housing Inspection 5
Library 6
Parks 3
Police 9
Pollution Control
Recreation 5
Refuse 3
Streets 5
Transit 3
Water 6
WERE CITY EMPLOYEES COURTEOUS?
Yes 21 84 %
No 4 16 %
WAS YOUR REQUEST HANDLED
Immediately
13
59.1%
Within one week
2
9.1%
Within one month
1
4.5%
Longer
6
27.3%
WAS THE RESULT SATISFACTORY?
Yes
15
65.2%
No
8
34.8%
WHAT IS YOUR GENERAL REACTION
TO
CITY SERVICES?
Very good
8
25.0%
Good
15
46.9%
Acceptable
6
18.8%
Poor
3
9.3%
y�g9
WHAT WOULD
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AT SEVERAL TIMES A WEEK?
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CQS WOULD YOU LIKE OR WHICH EXISTING SERVICES WOULD YOU IMPROVE OR EXPAND?
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WHAT DO YOU LIKE BEST ABOUT THE IOWA CITY GOVERNMENT?
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WHAT ONE THING WOULD YOU CHANGE ABOUT THE IOWA CITY GOVERNMENT OR SERVICES IF YOU COULD?
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CITY OF IOWA CITY
CITIZEN INPUT SURVEY QUESTIONNAIRE DATA
MONTH OF September, 1977
NUMBER OF QUESTIONNAIRES MAILED 203
NUMBER OF RESPONSES RECEIVED 23 11.3 %
DO YOU REGULARLY RIDE THE CITY'S TRANSIT SYSTEM
Yes 9 37.5 %
No 15 62.5 %
NUMBER OF REQUESTS MADE WITHIN THE PAST YEAR FROM THE FOLLOWING DEPARTMENTS:
Animal Control 4 Forestry 1
Code Enforcement 2
Fire
Housing Inspection 1
Library 2
Parks
Police 4
Pollution Control 1
Recreation 3
Refuse 3
Streets
Transit
Water 3
WERE CITY EMPLOYEES COURTEOUS?
Yes 12 100 %
No %
WAS YOUR REQUEST HANDLED
Immediately 9 81.8%
Within one week —� --TB-.T%
Within one month %
Longer %
WAS THE RESULT SATISFACTORY?
Yes 1 76.9%
No �_ 23.1 %
WHAT 1S YOUR GENERAL REACTION TO CITY SERVICES?
Very good _g_ 40.9%
Good �_ 36.4%
Acceptable 22.7%
Poor %
y/ 49
..WHAT CHANGES WOULD CAUSIVU TO RIDE THE CITY BUSES AT L(jw SEVERAL TIMES A WEEK?
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WHAT NEW SERVICES WOULD YOU LIKE /OR WrHICHH EXISTING SERVICES WOULD YOU IMPROVE OR EXPAND?
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HOW WOULD YOU PAY FOR THESE CHANGES?
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WHAT DO YOU LIKE BEST ABOUT THE IOWA CITY GOVERNMENT?
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WHAT ONE THING WOULD YOAUr� HANGE OUT THE IgOWA CITY/ GOVERNMENT OR SERV/ICES IF YOU COULD?
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CITY OF IOWA CITY
CITIZEN INPUT SURVEY QUESTIONNAIRE DATA
MONTH OF Octohar. 1477
NUMBER OF QUESTIONNAIRES MAILED 300
NUMBER OF RESPONSES RECEIVED 33 11 %
00 YOU REGULARLY RIDE THE CITY'S TRANSIT SYSTEM
Yes _10 fig_%
No 19 66 %
NUMBER OF REQUESTS MADE WITHIN THE PAST YEAR FROM THE FOLLOWING DEPARTMENTS:
Animal Control
Code Enforcement
Fire
Housing Inspection
Library
Parks
Police
Pollution Control
Recreation
Refuse
Streets
Transit
Water _Z
WERE CITY EMPLOYEES COURTEOUS?
Sidewalks
Permits
Yes 27 90 %
No 3 —10 %
WAS YOUR REQUEST HANDLED
Immediately 22 75.9%
Within one week 2 6.9%
Within one month 2 6.9%
Longer 3 10.3%
WAS THE RESULT SATISFACTORY?
Yes 22— 7R -A
No 6 21.4%
WHAT IS YOUR GENERAL REACTION TO CITY SERVICES?
Very good
8 23.5%
Good
Acceptable
Poor
y/g9
WHAT CHANGES WOULD CAU OU TO RIDE THE CITY BUSES AT Lo SEVERAL TIMES A WEEK?
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WHAT NEW SERVICES WOULD YOU LIKE OR WHICH EXISTING SERVICES WOULD YOU IMPROVE OR EXPAND?
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WHAT CHANGES WOULD CAU OU TO RIDE THE CITY BUSES ATL SEVERAL TIMES A WEEK?
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WHAT NEW S7ERyVICES WOyLD YOU LIKE OR WHICH EXISTING SERVICES WOULD YOU IMPROVE OR EXPAND?
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WHAT DO YOU LIKE BEST ABOUT THE IOWA CITY GOVERNMENT?
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WHAT ONE THING WOULD YOU CHANGE ABOUT THE IOWA CITY GOVERNMENT OR SERVICES IF YOU COULD?
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tTrban 'Growth T
Summary
During lite 1960's and early 1970's the land use
0 patterns of new development in Fresno, Calk
fornia took on forms so difficult to serve elli-
ciently that municipal service costs began to
increase faster that new revenues were gener-
ated. Tax rates continued to rise, leading; to
public concern over the city's failure to prevent
urban sprawl. To address this issue Fresno has
dr:rxvn up an Urban Growth Managenu•nl pro-
gram (UGlst) in which new development pro-
posals are subjected to it service deliverN. review
and a cost -revenue analysis. Since the initiation
of UGM, growth in and around Fresno has
laken it more rational pattern, bringing fiscal
strength to the city and allowing it reduction In
the nttmicipaltax rate, This repurl describes the
development and operation of UG111 and rec-
auunends Fresno's approach in other cities.
Introduction
Since the early 1970's, public concern for enrwing
lural fiscal burdens has affected many :ulwcls of
numicipal operation. Annual operating budgets
and capital improvement programs for ow nwipal
services have come under closer examination as
.idea have attempted to control future finon,lad
couuniunenis. in thnse communities cx11cncac1112
Llpnl growth the mull signil leant impact ,m ihr r,,,l
nl •.e ra Ices cones from the illere me It ad, 1'.. h, n.0
p„puLmnn, housing and cnuunerc•e. T -ho dr, 1,x,,,1
d1 ,dluw au increase in community size lest, 01 .m
aJ1111w4edgemea of Rollie city respon : ,Oitw, ,,,
,r1,r the new n•.cidrnl,
�rptcmoer n �r r
Management
Information
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lanagemehl'R
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hitt haphazardly in geographic terms. Most of the ` i public safety) required in developed locutions out
city's new construction took place to the north ands''`, side the city. These sites have become urbanized
east of the original community, but the patterns of.;;'; under county regulation and for political and social
growth were by no means''rcjalai 'Thegcity an- 'i-arcasons have often remained unincorporated
nexed land upon simple application by developers,"" though adjaceni to developed city areas. In conse-
even if than meant bypassing or;"leap.(ragging" y''.quencethe county was responsible for serving sev-
vacrnt territory between old and :new. `develop- ; ;, eral scattered, non-contiguous communities which
nients. Areas of mtincorpordttd territoryYremained%:'g.madc rationalization of public activities impossi,,
as islands surrounded by the city,:... :; `,' ble. If both the city and file county were to provide
The provision of municipal servicesfollowed thcF• and benefit front improved efficiency of services, it
annexation patterns, resulting;; Kan,;unevcn dis-- •;,was necessary that they reach agreement on their
tribution a( revenue, personnel 'tmdfacilities;;;respective responsihilities to the growing areas in
(toads and water and sewer lines;were'•cxtcrided ,.the immediate vicinity of the city.
outward to meet every new unit of growth regard -6I5 -It;',. Another actor which. had to be considered is
less of the density or size ofitdevelopment, Where ,;if to California though not indispensable to
leap -frogging half occurred, these extensions were''' ` the solution finally reached. Under California law,
huiItthrough uit incorporated territory for which the s':'each county is provided with a "Local Agency
city had no fornud responsibility., The cost of m6 -'t' < ' Fomuuion Continission," (LAFCO) whose ntent-
M'
nicipal services continued to climb, as did. the local; hers are appointed by county supervisors :ofd city
tax rate, Fresno was growing, but the beefit was;'; councillors from among their own ranks. This
not accruing so much to the city as to the builders:; ,: commission is responsible for approving all incor-
and residents of new developments.,.The city,;., porations and annexations by cities and special
sought a means to continue that growth'while ini� districts. To guidejudgcnnent in these matters, each
proving its fiscal position, county LAFCQ adopts foreveryciry in its jurisclic.
tion an ultimate Ixwndary or "sphere of influ-
Institutional Setting ence•'• No annexation may take ptuce uutsidc a
The solution ar Fresno'sdlie mma was generated by city's sphere of in0urnce and no new incorporated
the municipal government.Twootherjurisdicdons-:. cntity may be allowed within the .phere, The
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important commercial center in the stato, s San loa ,; east and west: Though not a provider of municipal- .
quin Valley. Surrounding it do all,directions;'is:`, "type services inside the city limits, Fresno County
intensive agricultural activity, During the, 1960'sie,(like manyothercountiesinCalifornia) historically
;T
and early 1970's Fresno grew 'at a moderate pace `r has been responsible for'the provision and man-
(3200 people per year or 2% annual growth rate),;; agement of many such operations (utilities, roads,
hitt haphazardly in geographic terms. Most of the ` i public safety) required in developed locutions out
city's new construction took place to the north ands''`, side the city. These sites have become urbanized
east of the original community, but the patterns of.;;'; under county regulation and for political and social
growth were by no means''rcjalai 'Thegcity an- 'i-arcasons have often remained unincorporated
nexed land upon simple application by developers,"" though adjaceni to developed city areas. In conse-
even if than meant bypassing or;"leap.(ragging" y''.quencethe county was responsible for serving sev-
vacrnt territory between old and :new. `develop- ; ;, eral scattered, non-contiguous communities which
nients. Areas of mtincorpordttd territoryYremained%:'g.madc rationalization of public activities impossi,,
as islands surrounded by the city,:... :; `,' ble. If both the city and file county were to provide
The provision of municipal servicesfollowed thcF• and benefit front improved efficiency of services, it
annexation patterns, resulting;; Kan,;unevcn dis-- •;,was necessary that they reach agreement on their
tribution a( revenue, personnel 'tmdfacilities;;;respective responsihilities to the growing areas in
(toads and water and sewer lines;were'•cxtcrided ,.the immediate vicinity of the city.
outward to meet every new unit of growth regard -6I5 -It;',. Another actor which. had to be considered is
less of the density or size ofitdevelopment, Where ,;if to California though not indispensable to
leap -frogging half occurred, these extensions were''' ` the solution finally reached. Under California law,
huiItthrough uit incorporated territory for which the s':'each county is provided with a "Local Agency
city had no fornud responsibility., The cost of m6 -'t' < ' Fomuuion Continission," (LAFCO) whose ntent-
M'
nicipal services continued to climb, as did. the local; hers are appointed by county supervisors :ofd city
tax rate, Fresno was growing, but the beefit was;'; councillors from among their own ranks. This
not accruing so much to the city as to the builders:; ,: commission is responsible for approving all incor-
and residents of new developments.,.The city,;., porations and annexations by cities and special
sought a means to continue that growth'while ini� districts. To guidejudgcnnent in these matters, each
proving its fiscal position, county LAFCQ adopts foreveryciry in its jurisclic.
tion an ultimate Ixwndary or "sphere of influ-
Institutional Setting ence•'• No annexation may take ptuce uutsidc a
The solution ar Fresno'sdlie mma was generated by city's sphere of in0urnce and no new incorporated
the municipal government.Twootherjurisdicdons-:. cntity may be allowed within the .phere, The
. .1 I (11 I I Ito N'r11' 1' I I I-
civloh that municipal service rusts begaul to
increase faster Ihim lie" re\critics 11 cat- i;l'lll'I'-
a(vil. Tax rates continued In rise, leading lis
public concern river the city's failure w ill % rnI
urban sprawl. To address this issue I'resnu has
dr vin illi all Urban Grovith Managemrul pru-
granl (UG11) in which new detclupment pro -
finials are subjected to a sen'ice deliver) review
find a cost -revenue miah'sis. Since the initiation
of UGM, growth in and around Fresno has
taken it Inure rational pattern, bringing fiscal
strength to the city mrd allowing a reduction in
itis' ntunicipaltax rule, This repurt descrilk's the
derclopment unit operation of UG\I and rec-
oino ends Fresno's approach in other cities.
Introduction
Sine the early 1970's, public concern hn gnawing
lo,al fiscal burdens has affected many :i,pccii (d
municipal operation. Annual operating budgcls
:rid capital Improvement programs for nuuucipal
services have come under closer examination as
cities have attempted to control lumre financial
commitments. In those communities experiencing
rapid growth the most significant impaction the alit
of servicescomes front the incremem added M' lieu
population, housing and commerce. 'file dei bl"11
al allow an increase in community size leads to .or
acknowledgement of future city responsibilities to
serve the new residents..,
Fresno, California provides an example of if city
which hits become aware of the implications of
growth and which has decided to accommodate that
growth while attempting to maximize the effi-
cienev of the'services' provided. The city is an
and early 19/1_1 s vresno brew at a mouerate pace
Ilas occ11 Icstrooslmu lul ti,o pnnl]IV l o1u1 wn
(3201) people per year or 2% annual gri rate)
agenient (d litany such operations (m dtties, roads,
but h apha/tidily in gCtlgraphlc terms. Most of the
public safety) required in develo(xd IOCalioilS oul-
cllv's mew construction lout: place to the north and
Side [Ile Cil)'. 'I'llese sites llJVC bel•Oule Urbanized
east of the origin;d community, but the patterns of
under county regulation and forpolillc'al and social
growth were by nu means regular. The city an-
reasons have often remained unincorporated
nexed land upon Simple application by developers,-
though adjacent to developed city areas. In conse-
even if that nic nl bypassing or "leap -frogging"
quence 0fe county was responsible forserving sev-
vacant territon• between old and new develop-
eral scauered, non-contiguous communities which
mews. Areas of unincorporated territory. remained ':
made rationalization of public activities mllpossi-
as islands surrounded by the city.
ble. If bah the city and the county were to provide
The provision of municipal services followed the - :
and benefit from improved efficiency of services, it
annexation pat[tems, resulting in an.uneven dis-. .: -
�'
was necessary Ilial they reach agreement oil [heir
tribution (it' revenue, personnel and facilities.
respective responsibilities to the growing areas in
Roads and water and sewer lines were extended.-;
the immediate vicinity of the city.
outward to meet every new unit of growth regurd-t.',: '
Another actor which had to be considered is
less OflhC(ICnSily or size of it development. Where'„I
unique to California though not nldispensi1bIC IU
leap -frogging had occurred, these extensions were
the solution finally reached. Under California law,
built through unincorporated territory for which the ''r
each court[), is provided with a "hand Agency
city had no formal responsibility. The cost of mu=,'`
Fomlation Commission," (LAI -CO) whose mem-
nicipal services continued to climb, as did the local.,
bt`rs are appointed by county supervisors till Cil)'
tax rate. Fresno was growing, but the benefit was'?;
councillors from among their own ranks. This
not accruing so much to the city; as to the builders;",
commission is responsible for approving all incor-
and residents of new de ve lop menls•The' city ,�porallons
and annexations by cities and special
sought a means to continue that growth while im- ,',
districts. To guide judgement in these matters, each
proving its fiscal position. �' , '. ..county
LAFCQ adopts forevery city in itsjurisdic-
"'1
tion an ultimate boundary or "sphere of influ-
Institutional Setting
encc." No annexation may take place outside a
The solution to Fresno's dilemma w isgenemted by ',
city's sphere of influence and no new incorporated
the municipal government. Two other``junsdicuons ;''
entity may be; allowed within the sphere. The
•.
laud to be considered, however, and it was neces-: •
purpose of the municipal spheres of influence is to
sary for the city to work with them The first 0170,
promote the management of growth under the
these was the government of Frcsndi ounty, a i .jurisdiction
of cities with comprehensive and ra-
;•
political unit including not only�thcetyti tandthe!;ti;'tionalized
service delivery responsibilities,
agriculttind valley surrounding it, but also dzeable::.,
.The Fresno Ccunty,LAFCO adopted a sphere of
mountainous and generally umnhabited'aiea; tothei;(
influence for the.'city of Fresno in early 1970's. In
'
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tGR1 ai-} t•,^I n yr i�1(x '`Nsnw OpM �ri�,p`,
MIS Innovations Series
Figure 1 — Fresno, California
Urban Growth Management Area
L.�
pct,[t,Q ' . i t ,- r.
fr-1 Ulla Go'.inMwte••�rn
� F,t..l 01, -,ter, of M ,r t1:Y ]J•,
•- . 4 Wn Groan 4mui•^ru ....., .•.,: r
- FNw GI, L
keeping with state law the sphere establishes
Fresno's ultimate boundary, though this is set tar
enough outside the existing city limits that phoning
and annexation activities today still fall within die
hoc dr:axn.
Policy Development
1\veiny years of increasing service costs and taxes
caused the city and county to explore nicthods of
m:,naging development on the fringes of the city.
Most of the initial communication and policy de'
veioputent wits undertaken by staff of the two) uris-
dictiuns. Individuals involved included Fresno's
chief administrative officer, public works director
and planning director and their opposite nund,ers at
the county, particularly the administrator and the
planning director -It was only after administrative
staff in bothjurisdictions— those directly respon-
sible for the management of public services -- had
agreed on policy proposals that the support of
elected officials was sought. It was Ixlieved that,
until a proposal could be arranged to the satisfac-
tion of city and county management, it xvould not
be feasible to make a presentation to the elected
rl .. .
" t a the proposed development must be within ex
isting city limits or
j i I I 1 11 • it must be within the sphere of influence set b'
LAFCO or
i•= = • it must be within an unincorporated islani
wholly surrounded by the city
!r If the location is satisfactory, (see Figure I) the
city then works with the developer to address the
twin financial questions of capital investment and
xt,7 1 l '" Y � ' �' t service operating costs. • ,,:
The issue of capital investment to provide the j
infrastructure For new development isaddressed by
tea r) „ + means of a "service delivery, review," The pun-
`, +, S , l r — pose of the review is to establish a program under
which a deScloper will assume the responsibility of
paying for the necessary and non -deferrable exten- '
t4 9+. _ sions of municipal fire, water, sewer and street,
.r service. Many 'communities today resolve this "
matter by charging all developers a fixed fee' per
i„• Y ° `^ — . dwelling unit which should roughly equal the capi-
tal cost for serving residential subdivisions. Fresno
api-talcostforservingresidentialsubdivisions.Fresno\x int approached the question differently, reasoning that
costs vary from project to project. )
•� _ I Instead of charging a fixed fee the city has estab- ;
fished a Service Delivery Review Committee
;!_ which examines every development proposal inde-
pendently. The committee. is composed of the ~
heads of what'the city calls "service delivery .
e.,nay.. r..,,o o-,rw"nw m)at '-i•
departments.”. These are Parks and Recreation,
..,, N. YI( Ubnw fuw boo ILtlN, '-
` Planning, Public Works, Police, and Fire. -The
r '�.`•' committee is chaired by a representative of the
. Proposals for land not coutiguo'6s to existing administrator's office. The product of the com-
development or outside the city's sphere of in- mince's review is a specific plan, tailored to the
nuence would not be approved of all. Land In,., design of the development, in which the needed
this category would remain in agricultural use. facilities are described and costs are assigned.
Of the four elements in the service delivery plan
The adoption of these policies — representing a — fire, water, sewer and streets — the city has
reduction in county service responsibilities = designated fire protection as the most important.
paved the way for the city to begin active manage This decision reflects the differing natures of the
mens of its own growth. Fresno then established a services. OI' the four, fire is the only one which •
development policy so that it' could accept the-. cannot be extended incrementally, or in proportion
duties, delegated to it by the county. The city's: ;' to the size of the development. A fire station with'
policy was designed over it 'IS-month'.periodin:",), its equipment costs about $300,000 and represents
1974 and 1975 using existing planning department ; ' an integral unit of investment. Yet if the city is to
staff. Assistance was also provided byatechnology',}' maintain its overall fire rating (Class 2 by, ISO
agent assigned totlie cityadministmtol•'soffice and ' standards) it must extend fire protection in each `!
funded by the National Sciencc'Foundation ; newly urbanized area. For this reason Fresno uses
through the Califomia Innovations Group. Neither.; r fire stations and the districts around them (defined
consultants nor extra staff,were'employed in the c`+'.by 2 -mile running distances) as "building hlgcks"
creation of the policy and implementing pmgmm,' for new development. Builders are encouraged to
Designated Urban Growth Management (UGM), make the most of existing fire districts before pm-
ilie program was formally adopted, In January 1976 posing projects requiring investment in new
and has governed municipal development since k stai1oits.W here thiscall lxxclone, thedevetoper can
that tittle. ;,t ' ' save it great deal of fire protection capital costs, ill
The purpose of UGM is to accomodaie and man addition many other savings made possible by . ;
...- v1_v C• ". 4.n, i.. ...,...
1 iaq C✓, Lm. a
keeping with state law the sphere establishes
1=iesno's ultimate boundary, though [fit, i, set tar
euoueh outside the existine city limits that pl:mnmg
and annexation activities today still fall widen the
Policy Development
1'It envy years of increasing service costs and naves
c:uued the city and county to explore methods of
npunaginc development on the fringes of the city.
Most of the initial communication and policy de-
vclupmcnt was undertaken by staffof the twojuris-
dictiuns. Individuals involved included Fresno's
cluel' administrative officer, public works dirceaa'
and planning director and theiropposiie nuinhers at
the county, particularly the administrator and the
planning director..lt was only after administrative
staff in bothjurisdic'tions — those directly respon-
sible for the management of public services — had
agreed on policy proposals that the support of
elected officials.was sought: It was believed that,
until a proposal ould be arranged to the saiisfac-
tion of city and county management, it would not
be feasible to make *a Presentation to the elected
officials in tither jurisdiction..
Legislative action was first taken by the county.
Upon the recommendation of the administrator the
county adopted a four -point development policy.
• The county would no longer undertake tlie pro v'i-
sion of new municipal services where those ser-
vices could instead be provided by the city.
Henceforth the county would encourage all fu-
ture growth to take place under city jurisdiction.
• Where a development was proposed on county
land within one half mile of the city limits, the
county would refer the developer to the city,
with the recommendation that the city annex the
location in question in order to provide services.
The county would not expand its own services
within this zone;'
• Where a development was proposed on county
land greater than a half mile front the city hitt
within the city's sphere of influence as defined
by LAFCO, ihwould be approved and served
only if it constituted "infill" (i.e. were in take
place on a site surrounded by existing develop.
inert). This would allow the county to increase
its service commitments incrementally so as to
take advantage of economies of scale.
'==�1
which examines eve' development proposal rude-
'F�"t"#`
j —'
pendently. The e'olp mille'e Is composed of the
heads of what (lie city calls "service delivery
,�
w,yw. ..tryrwY urau yet';
•I,4w.,
departments." These are parks and Recreation,
r
W 4 ,.L.r, l.N}4•u
+.u,:.'�YI� 1
Planning, Public Works, Police, and Fire. The
committee is chaired by a representative of the
• Proposals for land not contiguous to existing
administruor's office. The product of the com-
development or outside the city's sphere of in-
miuee's review is a specific plan, tailored to the
fluence would not be approved at all. Land in
design of the development, in which the needed
this category would remain in agricultural use,
facilities are described and costs are assigned.
Of the four elements in the service delivery plan
The adoption of these policies— representing a.
— fire, water, sewer and streets — the city has
reduction in County service responsibilities —
designated lire protection as the most important.
paved the way for the city to begin active manage. ,
This decision reflects the differing natures of the
ment of its own growth. Fresno then established a .';
services. Of the four, fire is the only one which
• ;.
development policy so that it' coulJ -accept the.
cannot be extended incrementally, or in proportion
duties delegated to it by the county:; The city's. '
to the size of the development. A fire station with'
policy was designed over a 15 -month' period in -
its equipment costs about 5300,000 and represents
1974 and 1975 using existing planning'depanm6m :
' an integral unit of investment. Yet if the city is to
?�
staff. Ass istanccwas also provided byatechnology�
maintain its.overall fire rating (Class 2 by ISO
age ntass igtied tothe cfly admin istratoi'sofficeand ;:
standards)'it.must extend fire protection in each
funded by the National Science'Foundation ';
newly urbanized area. For this reason Fresno uses
through the California Innovtitidns Group: Neither. ",
fire stations and the districts around them (defined
r,
consultants nor extra staff were employed in.the i -;',
by 2 -mile running distances) as "building blgcks"
creation of"the policy and implementing program;,;,
;;for new development. Builders are encouraged to
Designated Urban Growth, Management (UGM),';';,';
make the most of existing fire districts before pro-
f'I
the program was formally adopted ,In]aduary 1976"':
posing projects requiring investment in. new
j.
and has governed municipaldevelopment,smcel`'.`stations.Wherethiscanbedone,thedevelopercan
4'
that time. r.,l r
save it great deal of fire protection capital costs in
b P P
,
The purpose of UGM is io accomodate and man",,,.,
' addition to zany other savings, made possible, by
• ;'a
age growth. Unlike growth control. schemes
taking advantage of existing streets and water and
adopted by, other communities (t g Petaluma);; `
sewer lines
Fresno's program does not in any way;attempt,to t
, Once a service delivery. plan has been developed
limit the quantity of new development: Rather, tj:."and
approved, the city staff proceed to, the next
attempts to guide growth into certain patterns L- stage of UGM; which deals with the operating costs
The Urban Growth Management program guides ';arising
from new development. This stage involves
` •'
all new development outside the urbanized areas of^'r .a cost/revenue;analysis based bn:
(, y •;
the city.,Thus existing urbantzed,areas are ex ;.
from tofencoumgede ;
•'Taxes to lia'generated by the project, and
r
Zt
empted the, process so as
veloper3toconsiderusingavadablelandtherefirst4; ';
•Operating costs of all municipal services to be
:; F
Y^I
provided the residents of the new subdivision
Urban. Growth Management,i ,',r. t ,•
-The analysis is undertaken by the city's planning
�p4S Ir' .
.Though UGM'appliestoall prospectiveland.use :'department
with the assistance ofanin-house com-
.changes, the most significant rise.al Impacts are'-'`
`purer which provides totals in a matter of minutes.
caused by residential development' �Thts report;:
It is, however, possible to perform the task by hand
will, therefore, describe UGM in terms of its effect
as well. An entire subdivision can be analyzed by� r;
on housing proposals; The UGM processes, how `:
,'hand in. less than a day.'
ever, are essentially the same for poTmercial and •, ,''
To arrive at the totals on the revenue side the
industrial projects. - y ,,
'icommfttec solicits information from the developer
I c�
{tY l
The program is composed oC three; elements ,,
', conceming area of the project, expected pops la-'
Only if all three elements are satisfied does the city;'.
,:tion, value:and/or rent of dwellings, and sizeof.
approve a prospective development;`and, where .-,,'
dwellings. To these variables are applied average
L; ;i
necessary, apply to LAFCO for annexation;;,; ;4;':';,;revenues
received front relevant tax sources; a,,:i'-;;%
First the city examines the site to'determine.ititc;•',ftve-year
cumulative revenue estimate is then made
+r;{
meets one of the following cotton
for the project. These taxes and the bases of their
�. 1
- "
1
tlibmi Growth Management
Table 1 — Revenue Sources — Clry of Fresno
'I ax (lase of Calculation
Ihotvn)• (ad valurcn)
Value of pmlxny
Ullim
Duelling unit sur,
1-lan,lmc
Dunlbng unit sire,
talo
Pwtxny \'aIle or fell[
1:6 all in,hcatur of in.omel
f,,ralene sale's
Npulation (Aelaf•c
Iter person)
Alo4i,dic ixrerage
Population
A,lum,,wne lemcnainmmn)
Population
Heil estate transfer (fest
value of propem
„ar of pnyeat onl))
(i.uuI111C NIG
Population
w AICr Chdfee'
MIIIItxr of dNelllnp
%lmuopal fines
Population
li,cwle licenses
Population
Anminl licenses
Population
solace. 6p of Fresno
calculations for residential development are set out
hcluw, in 'rable I.
From the five.year totals of these revenues are
subtracted the cumulative municipal operating
costs attributable to the development for the scone
five years. Present municipal operating Coils, up-
dated yearly, are computed for a wider range of
services than is the case for capital expenditures.
Fire, police, par"andrecreetion, streets, planning
and inspection, general adiiiinistrative and non-
depanmental costs (including pensions) are all
computed on the,basis of present expendiones
made on behalf of the city's existing population.
'fouls are arrived at for each service, but are also
hntl,en out within services into four ca tgones:
• Direct costs for new services to be provided
within the project
• Indirect costs which are essentially a ch.trge to
the new resident "buying in" tet exi,tmp coy
services
• hepanntcnial costs to cover the adminkirni,nt
nl direct and indirect services
• Administrative costs for support services fool
those agencies which provide suppon oto the Ilnc
departments discussed above.
An example of the Computations necessary to de -
let nme to project's share of lire protection costs is
shown in Figure 2.
Alter the cost and revenue totals have been ar.
med at, they are compared In determine whclher
the Imposed development will pteseut .In .)!dad
Dscal hunlen to the city. Three outcomes ow p„s,t.
hic.
Five year revenue figures may total less than the
upetauntt costs fur the services in question, In this
September 1977 •
Figure 2 — Police Service Direct Costa -. "• ..-- i'• `
The direct costs of police services are allocated for two. -; any special protective features of a new development
tylxs of activity performed by the Patrol', Division; ;:• cull be taken into consideration.
resperose m calls for service, and preventive patrol. The second type of direct cost allocated to new de.,
During the current fiscal year the Fresno Police De velopment is preventive patrol time. The Patrol Division
paracent will respond to 143,000 calls for service. The spends most of its time responding t0 calls for service;
Patml Division will handle most of.these'(81, percent) however, the Police Department has been able to main -
and the rest will he assigned to the Traffio',Division. ` gain the standard of 14 percent of this division's time
When it P;nrol Officer responds to a call; he is sup- devoted to preventive patrol. •
Ported to settle degree by.lhe Technical Services Divi-' The lost is allocated to the three basic land use catego-
siun (Communications, Records,. Identirrcatton) the-, nes assuming a general relationship between the calls
Special Enforcement Services Division, and the loves- for service experience and the intensity of preventive •
ti cuiun Division.'Mercforc, (he cost of a call used In the';;. patrol.
and)sis is calculated on the basis,of,:ihe:.Patrol :• •:-.'. The third (ype of direct cost, the distance factor; is I
Division's time spent responding to calls and the cost of.+:' •, Included because of the current pattern of patrol activity
the direct_ support provided by other divisdoos.�Although',%" in the City. At the present time there arc sbacen police -
this cost per call is a City-wide average;.the number of � .` beats,covering. the City, and all patrol units aro dis.
culls per year shown in the analysis for, a'development'.' patched front Police Headquarters.
proposal is estimated on the basis of Po4c Department, �.�,;'' -, The Police Department considers a travel time lof
operating statistics, and generally refects'a•much lowen.."ftheen minutes_to get on and off a'beat area as accept;
it umber of cal Is per acre for'new developtnentthan -the .'.;able. but beyondahat the extra •distance is, in effect,
average number City-wide,', `a. increasing the cost, of. patrol activities.
The Police Depanment will, al the Service Dchvery; '',rl -The following equations have been developcilfroni
Review, provide an official estimate-of,the numbii ,of::",these considerations..
calls per acre to be used in an analysis; and ai this review ;'�'.I ",- `I "
POLICE
DRECTCOSTSERVICE
a �ICFOST
ORSERVACES ^COST OF PREVENTIVE, + -DISTANCE. FACTOR "
ACRES`INr a Estimated Calls Cost per call for
COST OF CALLS
FOR SERVICE : ,DEVELOPMENT x Per Acre x patrol Division and
Support Division,
p y.ia '•'' (559.61) '
rr. r. Table of Annual Celle Per Acre :. . •'.,� `.
'-:i Lond�Use ..'•Calls Per Acro,
r New Residential' _ ', ;•,;:' `
.Subdivision-. 2.0
`Commercial a.3
COST OF PREVENTIVE `•:AI A 1 % ' Preventive Patrol
PATROL ,'t Cost Per Acro
Table of Preventive Patrol Cost Per Acro
Land Uso Annual Cost Per Acre
Reskttintlal • i 524.33
Commercial .`•' - 53.49
Industrial'' 6.63 '•�`
,
Mllos beyond accoptod Annual Cost per mite
DISTANCE FACTOR service radius x for daily patrol trip
(.060)
services than is the case for capital expendiwre+.
Pile, police, parks and recreation, streets, planning
and inspection, general administrative and nun-
dep,utrnental costs (including pension.l .are .dl
computed on the basis of present expendnuicn
made on behalf of the city's existing population.
'totals are arrived at for each service, but are also
hlol.en out within services into four categories:
• I)ireci costs for new services In be prueided
within the project
• Indirect costs which are essentially a eh•uce tel
the new resident "buying tit" to em,lin, .nc
,ervtees
• Ikpanmental costs to cover the adutinistrnion
,it direct .one indirect services
• Adminisirdive costs for support services iaunl
those agencies which provide support !o etc Imo
departments discussed alvlve.
An example of the computations necessap to de-
termine a project's share of Are protection costs is
shout in Figure 2.
,Vier the cost and revenue totals have been ar-
rived at, they are compared to determine whether
the proposed development will preSeul an added
liscal burden to thechy. Three outcomes ane possi-
ble.
Five year revenue figures may total less thaw the
operating costs for the services in question. In this
instance the proposal will be retuned to the de-
veloper for amendment. The city stresses, how-
ever, that a deficit for operating costs does not
automatically disqualify a proposal. Rather, the
cost -revenue equation is used mainly as :in indi-
cator of general fiscal impact, the importance of
which will vary -depending on the specific propos-
al. Forexample'if the project would provide mod-
erate income housing (less than $35,000 per home,
either subsidized or unsubsidized) which is cur-
rently in short supply, then the city ma> give ap-
proval on the grounds of social value.
A second possible outsome of the c:dulations
might be a cost -revenue surplus for operating ex-
penses. In that cast; the overage will be compared In
deferrable capital requirements (e.g. parks, police
facilities) not considered in the service delivery
review. If the expected surplus revenues are less
(haul these capital costs, the project will Ile ;'I) -
proved, subject to payment by the developer of the
difference between the two figures.
In the third and most favorable type of cost -
revenue comparison, revenues will exceed Kill,
operating and capital costs over,the rave -;:ear triad
period. In this instance the project will be ;w-
UIII CI.I 1i4D1 I
I rain rn r...� -
I I
— I t
area, distance factor Is 0.
j
Source: City of Fresno
la .
ACRES IN
Estimated Cells
°
Cost per call for
ST OF CALLS
OR SERVICE
FF
.DEVELOPMENT
(A) ;,.
x -
Per Acre z
Patrol Division and
Support Division
orations (zoning, environntenmliimpact, annexa-
graphic change to the direction of new develop-
;
tion, etc.). :'1,'
ment. Previously new subdivisions were often
(559.61)
Table of Annual Calls Per Acre
Land'Use Calls Per Acre
.New Residential
.Subdivision. , 2.0
I"
Commercial. 4.3
.. - - -• -
- Industrial
COST OF PREVENTIVE A x Preventive Patrol
PATROL Cost Per Acre
Table of Preventive Patrol Cost Per Acro
n y Land Use, Annual Cost Per Acre
;�•ReskJentlal $24.33
i' -Corn erclat 53.49
-' Industrial';..6.B3
f
'Miles beyond recopied sAnnual Cost per mile
DISTANCE FACTOR service radius x for daily patrol trip r
-.� - (5660).
NOTE II proposed development Is adlacent to ezleang developed
area, distance factor Is 0.
j
Source: City of Fresno
la .
proved, subject to the other usual planning consid (
most noticeable] impact to date has been the gee
orations (zoning, environntenmliimpact, annexa-
graphic change to the direction of new develop-
;
tion, etc.). :'1,'
ment. Previously new subdivisions were often
;l
propiucit for, areas several miles outside city
The Impact of UGM
boundaries, requiring annexation and service- ex
On August 21-22, 1977, an ICMA'.'Innovations
tension to be paid for by the city. Since the incep- .
`
Project Review Team visited Fresno'; to, assess •
tion of UGM, however, construction activity has
UGM and to evaluate its' transferability, to. other •'%.,
generally been,kept adjacent to or within the exist-,
communities. Program impacts apparent .to the':
ing city limits, Only about 150 new dwellings have
4
team are reported in this and succeeding sections or,;',
been built on land which, before annexation„was'
the report. The members of the team were: Gary,.'
more than one half mile front city boundary. These:
Chase; City ManagerofMoraga,Califtnnia;James.;;t,homesrepresent less,than 10% of total new.con-
•qt
Barnes, Executive Director, Sacramento Regional'-
`stnstion in Fresno, and they were allowed only'.
`?
Area Planning Commission (the designated councd�,
;becausctheybrought insufftcient,revcnuetooffset'
of governments for the Sncramento :;Califomia'•'
the capital and operating costs of municipal scr
, . ,
metropolitan area); Robert Berman, Senior Plan
vices.
ner, City of Fairfield, ('elifornba, `nnd_Michael;i
: Though UGM imposes a geographic limitation
f
Ranccr; ICMA Innovations Projeci'Direetor.'. , •
on new construction, the city does not believe that
UGNf was into effect in January,;1976: The "'.;'
its program tins reduced building activity in the
%' i
put
wit
f L MIS Innovations Series
Urban Growth Management
September 1977 .' •�
area. All across the country the last two "cars hase
Fresno. The review team believes this conclu- .
mainly supportive ratherthan instigative. Most
shown great increases in the value of re:d estate
Sion is supposed by four indicators:
impcmant was the political conuniunent to
activity and in the quantity of new cun,truetn+o.
e New growth more than one half, mile from'
radonalizationofservices onthe part ofboththe
f-re,no appears to have kept up with the nauoo:d
existing city boundaries has. nearly ceased ::
City Council and the County Board of Super -
economy in this regard, even with UGM in opera.
since early 1976,
visors, The key to that commitment was the
tion. Construction activity in 1975, the rear hct oe
a Areas close to the city are absorbing almost,
prospect of lowering taxes.
LIGN1,totalled S69million inFresno. In 1976 the
all new development and evenpreviously,
7. In addition toseeinga need forpolitical support
figure increased 581;n to $109 million and to 1977
developed but unincorporated:neighbor- .'
and cooperation, the team found it necessary for
the city estinhates another 19Sb increase to a total of
hoods arc being brought into the city,
interested officials to have sonic sense of the
S 130 million.
s New development in and around Fresno'is
local housing market. UGM in Fresno is predi-
Nevertheless, it appears that UGM ha,afteeted
easier to serve than was the case prior'lo
cated on the existence of raw land sufficient not
the economics of the housing market in Fresno.
UGM. This is in put due to.the recent in-
only to allow for growth, but also to keep the
•
First, UGM has caused an increase in ne+v home
crease in the stock of apartment, buildings „
cost of housing down. If another community
prices. The city estimates that houses built under
and multi -story homes.
were to try the same approach with proportion-
UGM carry a price tag about $350 higher than was
a The improvements in the urban service de.
ately less available land, it would most likely
Q.
formerly the case. This is due to the higher "tient
sign and investment process appear to have'
experience an escalation in land prices. These
cud" costs charged to the developer which arc then
contributed to lower tax rates annually,in the ; '.
price increases would be translated into higher
paused on to the purchaser.
period 1975-77. The city expects to be able,.*
shelter costs, even after increased density were '
It is also likely that UGM has affected the nature
to continue lowering these ratesoverthe next 1?
accounted for. This effect would be difficult to
`;;'•
of newconswction. In 1975, about 65c; of all new
five ),cars. Prior to 1975 city taxes had risen`::
- justify in today's inflationary housing market.
housing in Fresno was of the •' single- f.unit), de-
steadily to the point where Fresno had one of•,.'`.
8.: Cities today must give a great deal of attention,
Cached" type. Today the propon ion of single Into-
the highest municipal rates in California.. _ •
totheeconomic inhpacisofgrowth. Inthefuture
ilr units has fallen to 35%. Sonic of this shill is due
It should also be noted that, despite. the stric-
other effects of growth may also demand atter-
It; till- influence ofthe national housing muket.'flie
tures placed on developers and the,resulling' -:'
tion. The team suggested that the UGM ap-
recent construction boom across the country has
changes in growth patterns, continued in-, :
proach be considered as a start to dealing with
I>Lrn largely in the multi -family adegor (nainly
creases in subdivision activity have apparentlyr;
' these issues as well. Such issues would include.
ap:nmhents), both because of the inflationary lac-
served to minimize opposition to. the program'..",
federal mandates on air quality, local resource
ton w work in the market for shelterand hecau,e of
by the local construction industry. Most impor-`.:..
concerns such as the availability of water, and
the shortage of this kind of construction duritu the
t:mt, though developers have argued against' ` •
, the basic need at all levels of government to
1973-75 recession. In Fresno, however, the need
UGM before the city council and jn the press, ;•,'. ;
. consider the demands on our diminishing en -
for more economical use of land — as demanded by
there has as yet been no litigation initiated on; i;
ergy supplies. Through its concern with land
UGM — has suggested to developers that they
the matter. -''
' use practices and urban density, local growth:
increase the number of units per acre..\lure apart-
3. In view of the above considerations the team;;
. management can address these environmental
menus have been one result of this nes% once.
concluded that the approach taken in UGM is,_
issues to some degree.
s
Another though less noticeable physical effect
an innovative and effective way to control the'•".
has been a marginal increase in the construction of
costs of growth. In addition, the team found -
Conclusion
two-story homes. Two-story houses have not been
UGM to he transferable to other jurisdictions;"`'
Fresno's Urban Growth Management program has
)r
common in California, however, and they remain
regardless of size. The members of the review '
directed new development to areas, which can be
rare in Fresno today.
team represented communities of 15,000
most effectively served by the municipal govern-
One unanticipated effect of UGM has been its
(Moraga), 50,000 (Fairfield) and 900 000: ;menu.
file program saves money for the city and
influence on cooperative ventures in the local esu-
(Sacramento metropolitan area).,Ench,beIicved.1
thus for the taxpayers. Its essential elements are
sunenon industry. Since the program demands that
that the. UGivi approach could be'usedin his -''transferable
and represent the beginning of long-:'
.:•t:7r..
a developer make a substantial imesuneni in
area.
term local control over available fiscal resources
5,
intra -structure — much of which must serve fuune
4. The team believed that the UGM approach is d <
and the demands upon them. The UGM, approach
subdivisions by other builders — the city has sue-
good way to involve cities in the management;` ;.
can be used in communities of till sizes to help them
y
gesicd arrangements whereby the first developer in
of their own fiscal resources; The team sug- ; `;;.'rationalize
the services they provide.
the area would be reimbursed by later ones as
Bested, however, that other cities may wish to •�
;� ..
construction proceeds. Even so, many firms find it
consider sonic elements not included m
r!
difficult to raise the needed capital for that initial
Fresno's work. In particularthe capital costs of„
l
expansion of services and facilities. In response to
schools, parks, police protection,,solid,waste
this problem, a number of companies have come
disposal and mass transportation•should be .For
further information on Urban Growth Man -
together to create a unique approach in one growing
given more thorough considerationifa coma l
agement feel free to communicate with:
;. y j
area of the city.
nunity wishes to have a complete picture of its
.l
After considering their plans for dcvrlopmom
future conunimhenis and resoirces,,,Though
Ralph Ilanley, Chief Administrative Office or
'
and the associated capital costs, eight de%elopcan
such a comprehensive approach, would take. -
Hugh St. John, Assisnnt Director of Planning or
i'�
formed it consortium to. underwrite jointly the pro-
Iongcrio,devclop and would.be more,compiex'- ; ,
Ralph Qualls, Assistant Director of Public Works
apallinenrsl, both because of the intlaw acus !.�c
tor, a vsark in the market for shchera m fin,un: �I
IIIc , I'll Iage of this kind of construction Juror,.- i'„
1'17.4-75 recession. In hresno, huvvevn, lir tic.,!
tot inure economical use of land — an dcni.mJcd bb
UUM — has suggested In develupel, th.d airs
movase the number of units per aere..%loic ap.nt
cents have been one result of !his nets lolee
Another though less noticeable physical ellca
It,, been a marginal increase in the colla Itic tun of
u,o Mall' homes. Two-si ry houses have not hcen
,0111111011 in California, however. and They rencdn
r•uc in Fresno loday.
one un:uuicipaled ellect of UGM has heel it,
m0uence on cooperative ventures in the local cmi-
suuctiun industry. Since the program denians6 lh.t
a developer make a substantial hoeNonent in
intra -structure — much of which must serve future
subdivisions by other builders — the city Ila, sug-
ge+md arrangements whereby the lint developer in
the area would be reimbursed by later cines as
construction proceeds, raven so, many f inns find it
difficult to raise the needed capital for that initial
expansion of services and facilities. In response to
this problem, a number of companies have come
together to create a unique approach in one growing
area of the city.
After considering their plans. for development
and the associated capital costs, eight developers
funned a consortium to underwrite jointly the pro-
vision of needed facilities. They prorated their
individual demands.on these facilities and estab-
lished their respecti4e cost shares accordingly. As
the various subdivisions are built over the next 10
years, the developers will be sure that services are
available to new, residents. In addition, the city call
he certain that the needed facilities will b; paid for
ml time; to ensure that developers follow the
agreement, the city.has taken— as a son of per-
fumlance bond -a senior lien on all the properties
involved.
Assessment
After examining Fresno's Urban Growth Manage -
local process, the review learn reached the (ulluw-
ing conclusions about the concept and its minster-
ability.
I. UGM is a tool designed to direct growth to
yeas in the city which can be served Oft-
ciently• It is intended to counter past growth
pmterns — particularly "leap -frogging •' ---
which have led to development far from the
city while hypassing close -in and available
arrear.
2. UGM appears to be achieving its goad in
served to minialize opposition to the program
federal mandates on air quality, local resource
by the local construction industry. Most impor-
concerns such as the availability of water, and
cut, though developers have argued against
the basic need ;it all levels of government to
UGtsl before the city council and in the press,
consider the demands on our diminishing en-
I
there has as yet been no litigation initiated on.
er.ey supplies. Through its concern with land
the mater,
use practices and urban density, local growth
3. In view of the above considerations the team
management can address these environmental
concluded that the approach taken in UGM is
issues to some degree.
all innovative and effective way to control the
costs of erowth. In addition, the team found
Concluslon
UGM to he transferable to other jurisdictions,
Fresno's Urban Growth Management program has
regardless of size. The rllelllbers of the review
directed new developllleal to areas which can be
team represented communities of 15,000
most effectively served by the municipal govern-
(Moraga), 50.000 (Fairfield) and 900,000.
ment. The program saves money for the city and
(Sacramento metropolitan area). Each believed
thus for the taxpayers. Its essential elements are
•''•
that the UGM approach could be used in his
transferable and represent the beginning of long -
term local control over available fiscal resources
area.
4. The team believed that the UGM approach is a
and the demands upon them. The UGDI approach
good way to involve cities in the management.
can he used in comnlunitiesof all sizes whelpthem
;
of their own fiscal resources. The team sug ' ,
rationalize the services they provide.
Bested, however, that other cities may wish to'
'^
consider sonic elements not included in
Fresno's work. In particular, the capital costs of
schools, parks, police protection; solid waste_,
L.j
disposal and mass transportation should be
For further information on Urban Growth Man
tit
given more thorough consideration if.a corn- ,'
agement feel free to communicate with:
:4,
Inanity wishes to have a complete picture of us''.
future commitments and resouri:MJhough d'
. Ralph Hanley ,Chief Administrative Office or
j
such a comprehensive approach would tale •:
Hugh St John; Assistant Director of Planning or
it
longer to develop and would be more complex ;, .'
..Ralph Qualls, Assistant Director of Public Works
to administer, it might also yield,more accurate ;
City of Fresno
information than that on which Fresno cur
'2326 Fresno St,
really relies.
Fresno, CA 93721:
4'
5. This support notwithstanding the team con ':
eluded that a device such as UGM should not be
used as a final arbiter in making development'it,
decisions. Rather, it.should be one'of many
tools used to direct urban growtfi;'economtcs Icy Credits ..
should not be given automatic. primacy over si' ,This report was prepared by Michael D. Rancer of
social or other values. Revenue and expenditure r ri
the'staff of the International City Management As
fy
estimates arc just that—estimates--and when ;
i sociation. It is part of ICMA's Local Government
projected ahead five years, they'become pro.':'-,'
;Management Innovation Transfer Project funded
l
gressively, less accurate. Even Fresno;officials' ,'by the Office of Intergovernmental Science and
were cautious about the reliability ,of.future cost;;,
, Public Technology of the National Science roun
-•
estimates and believed that fiVC;yC:U5,Wa5, lllC ;� -,-:'dation,
Grant No. ISP74.19292A04. Any opal
mnain ion period for which costs could be pro -
ions, findings, conclusions, or recommendations
jetted,expressed
in this report are those of the author and
,
�'v",iC
6. The review teamalsostresscdthe importanccin'':-
the manager review team and do not necessarily
Fresno's case of cooperation by'county"gov-' !r
,'reflect the views of the National Science Founda-
, e F
ernnlcnt. Wherever jurisdictions Face potential,
,. tion• ;
conflict over the regulationof,land'use, it is
essential that they reach agreement on their `:
Suggested citation: Michael D. Rancer, "Urban
respective responsibilities, In Fresno this
Growth Management," Municipal Management
'Innovation
was aided by the Local Apricy;Fonitation,, .; .
Series, No. 21,.Washingion, D.C.: In-
J
Commission's adopted sphere of Influence;,"' ' i
ternational City Management Association, Sep-
ultirnalcly, however, LAFCO'spresence was, '
tenlber 1977,
'y!
S
M
T
W
T H
F
S
1 8AM-Magistrates
Court (Chambers)
2
-Urban Renewal
L pro ect
mgg�Dires (Conf Pn
IMFiFirn� ot�n)
7:30PM-P&Z Fornal
(Chartbers)
(Conf Roan)
5 8AM-Magistrates
Court (piambers)
8PM-Mtg with
downtvan merchant-c
8 8AM-Magistrates9
Court (Chambers)
am-urban Renewal
LU
7PM •U.P.Y. (Fri
Meeting man)
7:30PM Council
(Chambers)
7:30PM-Airport Can
budget meeting
(Eng Conf Rom)
(Com)PM-Design
lOAM-Staff Meeting
(Conf Roan)
3:30PM-Housing Can
(Eng Cognfn Room)
IP
Cain (Cony Re
Review
Cam (Conf Roan)
:30PM-:anP Plan
Coord Can (Conf
(Conf Roan)
•
2 8AM Magistrates
Court (Chambers)
3
4:Consery 30
.9
OAM-Staff Meeting
5 BAM�gistra�
Court (Chambers)
16
8AM-Urban Renewal
17
1:30PM-InfOn al
Council (Conf Rn
7:30PM-P&ZC=
Informal (Conf
Com
Conf Roan)
7 30PM�ouncil
7(Chambers)
(Conf Fc�an)
30PM-Riverfront
n (Conf Roan)
an
•30PM-Parks & Rec
Cann (Rec Center)
7: OPM-Special
Library Board
Mtg (Lib Auditor
iun)
7:30PM-p' rt
Ca[m (Conf Roan)
7:30PM-P&Z Formal
(Chambers)
(Conf R=n)
18
1 BAI+- istra
court (CTianbers)
20
1
2 8AM-Magistrates
23
•
30PM-7n�ornal
LOAM-Staff Meeting
Court (Chambers)
8AM-Urban Renewal
--
Council (Conf Rn)
:30PM-Bd of Adjust-Circe
ment MV Coghnff Rn
Ca7PHme (�ConfRran)
Mayyors Youth
(�nber of
Office)
•30PM-Council
(Clanbess)
(Conf �)
15PM-Library Bd
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(Lib
PM-Desi Review
Cam (Conf Roan)
4PM Desi Review
Can (Conf Roan)
(Conf Roam)
25
26
27
30PM-Resources
Conservation
28
LOAM-Staff MeetingCourt
(Conf Roan)
8X -Magistrates
(Chambers)
BAM Urban Renewal
HOLIDAY
Comn
(Conf Roan)
(Conf Roan)
Rude jolt for militant public workers
By Martha Angle
and Robert Walters
SAN FRANCISCO — A trio of
ballot propositions rejected in the
recent municipal election here at-
tracted little attention outside this
city, but the vote was a harbinger of
a far more important contest expect-
ed neat spring.
At Issue is the growing controver-
sy over the wages, working condi-
tions and right to strike of the public
employees on the payrolls of the
state and municipal governments
throughout the nation.
Recent years have seen strikes on
the part of schoolteachers, firemen,
policemen and other goverment
workers In New York, Chicago, Bal-
timore, Seattle and other major cit-
ies.
But nowhere has the Issue pro-
voked more bitterness than In San
Francisco, a city whose erstwhile
reputation as a staunch "labor town"
has been replaced by widespread cit-
Izen hostility toward municipal em-
ploys" perceived asarrogant, lnsen-
stive and greedy.
I�
It began with a 1975 strike of po-
lice officers and firefighters, re-
solved only after then -Mayor Joseph
Alloto declared a state of emergen.
cy, then agreed to most of the on-
ions' demands while threatened by a
general strike.
The backlash generated by that
confrontation came only a few
months later, when city voters over.
whelmingly approved ballot proposi-
tions Imposing unprecedented re-
strictions on municipal employees.
In the spring of 1976, the city's
craft workers walked off their jobs
to protest a salary cut. A threatened
general strike again failed to mater-.
balite, and the employees returned to
wor)c 39 days later — without the
additional pay they sought.
Six months later, an angered elec-
torate approved another ballot prop-
osltfon, flatly prohibiting future
strikes by municipal workers. That
law also contained an unusual provi.
sion for dealing with unresolved con-
tract disputes in the future: t,
The city government's final offer
would automatically go Into effect at
the beginning of a new contract peri-
od, but the unions could gain accept-
ance of their demands by securing
voter approval in the next election.
This autumn's balloting provided
the first test of that approach when
the city -employed plumbers, electri-
cians and sheetmetal workers sought
public endorsement of their pro-
posed wages and working condi-
tions.
Each of those three ballot mea-
sures was defeated by margins of
more than 4 to 1. In fact, none of the
propositions could muster an affirm-
ative vote of more than 18 percent.
The debate probably will soon
spread far beyond San Francisco, be-
cause a committee headed by San
Diego Mayor Pete Wilson currently
is collecting the approximately 500,-
000 signatures necessary to place a
ballot proposition before the voters
of the entire state in the June 1978
elections.
That measure is so broad and
tough (it prohibits even binding arbi-
tration to settle municipal labor dis-
putes) that some critics of public em-
ployees are concerned about its
chances for passage.
Among its provisions: Public em-
ployee strikes are forbidden. Thodd. •
who violate the prohibition face 'up -
mediate mandatory dismissal. If they
should ever again get a government
job in the state, they must forsake aY
accumulated tenure and seniority.
in the unlikely event of a strike;
the employer is not allowed to IM�
prove or "sweeten" the last pre-;
walkout offer. Thus, it's legally Im-
possible for strikers to achieve any,
contract Improvements.
California's major ballot proposl-
tlom, such as those in recent years
relating to lobby law reform and un:'
ion organisation of migrant fargt
workers, invariably become national
as well as statewide issues. '
Next year's contest surely will.
achieve that status liccause both th!
state and nations AFL-CIO report-
edly are already mobilizing for'i
massive, expensive campaign to do-
feat an equally determined and well;
financed coalition of opponents.
eMMOVM EII\MAIM �NOLM1Pl -'`l
LC
Role for Government in Saving Farmland
Gets Boost From New Massachusetts Iaw
By NLIL ULMAN
Staff Report" of THE W AUSTaaar JOURNAL
BOSTON—A building national movement
to involve government In the preservation of
farmland got a boat in Massachusetts yes-
terday.
. Gov. Michael Dukakis signed a bill that
Would provide for slate purchase of develop-
ment rights on agricultural land, restricting
the land In perpetuity to agricultural use.
Massachusetts thus follows New Jersey,
Maryland and Suffolk County, New York, in
the adoption of such laws, which are under
consideration in several other states. A bill
Is also before Congress that would provide
federal assistance to states In funding the
purchase of such development rights.
The need for such programs is acute and
growing, according to It. Nell Sampson, an
official of the U.S. Department of Agricul-
ture's Sell Conservation Service. The nation
has been losing at least two million acres
annually of Its farmable land to develop-
ment in recent years, says Mr. Sampson. If
the trend continues, It could mean food -sup-
ply problems with attendant price Increases.
he believes.
Both Massachusetts and New Jersey ag-
riculture officials say their counterparts in
many states, Including California, Iowa, Vir-
ginla, Wisconsin, Connecticut and Vermont
among others, have contacted them with an
eye toward getting similar legislation en-
acted. "A lot of Western states which would
have bristled a few years ago at the Idea of
government Involvement In land use are
also expressing Interest," says Frederic
Winthrop Jr., Massachusetts Commissioner
of Agriculture.
Mr. Winthrop says increasing uncertain-
ties over energy and water supplies, trans-
portation costs, population growth and world
food supplies are causing slate governments
to look more carefully at their farmland
supply.
:Farm Bareau's Position
State and local moves to preserve farm
I and are also backed by the Chlcago•baaed
zimerlcan Farm Bureau Federation, the na-
tQn's tam taorganization, a spokes -
n an says. But the farm bureau opposes the
bill for federal funding on the ground that
lama use Is best left to local control.
.Federal funds are attractive to Massa.
chu setts, however, where economic neces-
sity Is part of the rationale behind the law,
acct Irdlng to Commissioner Winthrop. The
num her of forms in the state has declined
since World War 11 from 35,000 to fewer than
S,DDD,� arcurding In the Massachusetts ag i -
culture department. Once largely self-ruffl-
clent In food, the state currently Imports
85% of Its foodstuffs at a cost of S3 billion a
year. And Massachusetts residents pay 676
to 10%11 above the national average for food.
principally because of transportation cats,
the department says.
To stem this drain of farmland, the new
law would empower the stale to get ap-
praisals of both the free market value and
the agricultural value of selected prime
farmland. The difference Is the value of the
development rights for the land, which the
state would then be authorized to offer to
purchase. Sales by farmers of the develop-
ment rights on their land would be entirely
voluntary.
Once a farmer hes sold the development
rights, he must keep the land In formable
condition. He would pay taxes on the so -
cultural value of the land, rather than the
higher free market value, and would retain
all other rights to the land, Including the
right M privacy and the right to pass It on to
his heirs, restricted to agricultural use.
McOrarae,PuntPr WfA`' ,
The same principles apply In New Jet,
sey, which 1s currently appraising 18,1100
acres on which It has been offered develop-
ment rights, according to Richard D. Chum-
my, director of the division of rural re-
sources in New Jersey's department of agrl-
culture. About S5 million from the prooseds
of a bond Issue are backing this "pilot pro-
ject," says Mr. Chummy, as the state de-
signs the "next step." The program has "a
broad base" of public support, Mr. Chinney
asserts.
Farthest along with the purchase of
farmland development rights Is Suffolk
County, N.Y., which coven the eastern hall
of Long Island. Owners of 22 parcels of land
comprising about 2,0D0 acres have agreed to
accept the county's offer of about 16.11 mil-
lion for development rights on that land In
the town of Riverhead. The county is also
negotiating with farmers In the towns of
Southhold and louthhampton, a spokes-
woman says. A final public hearing must be
held before the transactions are closed. Pur-
chase of the rights Is being funded from pro,
ceedl of a Sri million bond Issue authorized
by the Suffolk County legislature. So far 111
million of the bonds have been sold, and
more will be sold as the need for soh
arises, according to the county.
Nathaniel Talmage, who raises mainly
potatoes on 131 acres near Riverhead, says
tax worries are the main reason he Is ac-
cepting the county's offer of 12,725 an acre
for development rights. That's the differ-
ence
ifference between the agricultural value of the
land and the 53,Wao-acre free-market ap-
praisal given by the county, he says. "We
want to keep farming. But the tax assessor
Is required by law to assess land at the
highest -use value. That means our taxes
have gone up rapidly In recent years to
about 1100 an acre, and we can't live with
that," says Mr. Talmage, whose family has
farmed the land for 95 years. Once sale of
the development rights is completed, he ex-
pects "a modest rollback" in his taxes.
More Important, he says, his taxes will stop
rising.
IV 172
Bureaucrats mock Carter vow
0
What governrnent-of-people?
By Rowland Evans pervlslon. Department officiate say member of a generally his won -
and Robert Novak the regional dlrectore never hed guiehed Cabinet who has his work
much power in the first place so. the completed on time and his depart -
t under control.
WASHINGTON—While the pub-
lic is not fully aware of it, federal bu-
reaucrats are confounding President
Carter's campaign promise of close -
to -the -people government by trans-
ferring authority from the field back
to Washington in'a major new cen-
tralisation of power.
That unannounced process Is far
advanced in the departments of
Housing and Urban Development
d Wel-
fareD(HEW) and, less clearlion y Labor.
Judging from his campaign empba-
sizing his non -Washington base and
extolling government closer to the
people, voters expected that one dis.
tinctive Carter label on the federal
leviathan would be less, not more,
centralization.
This represents neither broken
promises nor changed principles by
the president. Rather, ensnarled in
the sim-
ply has details
come to grips with rwhat
his administration should stand for.
While nobody doubted, for better or
for worse, the direction of Richard
M. Nlxon's presidency after ten
monneither setinorr soughta theme- residency hes
The Washington bureaucrats have
leaped to fill this void with a venge-
ones, tightening federal regulation
and devising new plans for federal
direction of the rutiosi's affalre. But
their successfatl drive to concentrate
all power In Washington is most sig-
nificant, oonaldering the lingering
belief of long-time
Carterites that ought to be -
glonall ging powerstill
domlrtuit Carter theme. A glance at
what is happening at Labor, HUD,
and HEW:
Labor: All regional directors have
been eliminated, bringing field of-
fices directly under Washington su•
does not mean much, but men
White House staffers say centralisa-
tion is undeniable.
HUD: There is no argument about
more centralization here. Not only
have the number of field offices been
reduced but their authority has been
sharply cut back. "The feeling is we
had to return the full decision -mak -
Ing to Washington," one high official
In HUD told us.
(Editors note: Part of HUD's re-
organization is the proposed trans -
ler of most Des Moines office per-
sonnel to Omaha.)
HEW: A reorganization t
re-
moved pgrsponebities
from regional directors, returning
them to Washington. Like Labor,
HEW's field offices will be directly
supervised by Washington instead of
reIII onal offices. Office of Education
employees In the field are being
brought back to Washington. HEW
spokesmen• say Secietary Joseph
CalIfena Is "central responsibili-
ty."
Joe Califsno leads the vanguard
of bureaucrats triumphant in the
first year of the Carter administra-
tion. Rgluctantiy selected for his
post by Mr. Carter at the urging of
Washington Insiders (headed by Vice
President Mondale), Washington in-
sider Callhno has emerged as a Cab -
In
t pot in the ostar In the, pinioln of his opinion
White
eHouse stat').
That is remarkable in view of Cal-
Ifano'e personitlation of more
spending, more regulation and more
centralisation. It Ie eexxppin
laed by oth-
er administration offlclals not as a
conversion in Mr. Carter's philoso-
phy but'as his turning in relief to one
Califano's triumph as a master
bureaucrat is not Isolated. Officials
who bellow In more, not lees, gov-
ernment dominate the adminlatra-
tion. Many. are graduates of the
Ralph Nader school of consumer
protection, but more reflect the ar-
chetypal bureaucrat predating Ralph
Nader by centuries. In the words of
one relatively conservative Cabinet
member: 'This administration U
filled with people who like to regu-
late other people."
For example, HUD is proposing a
plan (devised largely by Assistant
Secretary Robert Embry, former
Baltimore city housing commission.
er) that would require suburbs to
put in public housing cluster pro-
grams or lose federal money. Such
social engineering can stir up politi.
cal dogs that Mr. Carter might pre-
fer to keep sleeping.
That Is why friends of the presi-
dent, motivated only by his political
welfare, wish that Mr. Carter would
consider at greater length the fulfill-
ing of his promisee, explicit and im-
plicit, of decentraliratlon, deregela-
tion and a lees intrusive role for gov.
ernment.
But most of the bureaucrats are
pushing for still more government In
1978, to satisfy the left me well u
themselves. Moreover, even if the
president belatedly puts his mind to
It, it is too late in the day to un-
scramble the eggs of greater central-
ization and regulation. The cost may
be not only the lou of a distinctive
Carter theme but a big -government
thrust that is beginning to run
strongly against mase Opinion -
F1116 N"WOW W410 i'
y/4.
11
THE ECUMENICAL HOUSING CORPORATION
First Christian
St. Wenceslaus
First Baptist
First Presbyterian
St. Mark's United Methodist
Congregational -United Church
•
/VJd.�P
is at the present time composed of
representatives of 12 congregations.
First Mennonite
First United Methodist
St. Thomas More
Gloria Dei Lutheran
Trinity Episcopal
St. Andrew Presbyterian
The Board of Directors adopted the following set of goals for the unified planning
of Elderly Housing -Senior Center.
1. To develop the Elderly Housing units and Senior Center as a coordinated
unit.
2. To provide the elderly, the groups that represent the elderly, the agen-
cies that serve the elderly, the units of the university that commit
themselves to provide services and those with special expertise with
the opportunity for maximum input.
3. To make the development insofar as possible a community project.
4. To achieve citizen input through the leadership of The Ecumenical Hous-
ing Corporation.
5. To demonstrate the way in which the city and a non-profit corporation
can work together,
The Board of Directors has briefly reviewed the proposal of the Ebenezer Society
'to the City Council and recorded the following opinions:
1. To approve the concept of a joint task force.
-2. To volunteer to take the lead and to do the footwork in relation to
community input.
3. To express the opinion that it is important to use a common architect.
A. To express the opinion that it is essential to use a joint consultant.
S. To approve the Ebenezer Society if selected by the City.
We, view this as an opportunity to put together a comprehensive delivery of service
program for the elderly and to plan and build facilities that will facilitate an expand-
ing program of services to the elderly.
We hope that you will employ the Ebenezer Society and give us a green light to work
with you through the joint task force.
11/28/77
0 0
Agenda
Comprehensive Plan Coordinating Committee
Thursday, December 8, 1977 -- 7:30 P.M.
City Manager's Conference Room
I. Approval of Minutes for November 30, 1977.
II. Discussion with Library Board on:
A. Long-range planning for Library facilities.
B. Citizen participation in planning for library facilities.
III. Selected Issues and Alternatives.
IV. New Business.
V. Adjournment.
Meeting Objectives
1. Coordinate Library Board and comprehensive plan objectives.
2. Recommend alternatives for "major" issues, so staff can
proceed with alternative plan document.
Pending
1. Review of remaining Issues and Alternatives Analysis.
2. Review of draft plan elements.
*City of Iowa Cite
DATEI December 2, 1977
TO: CPCC Members
FROM: Rick Geshwiler, Senior Planner
RE: Evaluation of "major" alternatives
Since the schedule for the comprehensive plan process is very tight,
time can be best used if certain "major" issues are addressed first.
It is assumed that the follovipg issues will have the greatest impact
on development of the land use plan and the zoning ordinance. These
issues should be given priority, and the CPCC should be prepared to
make recommendation at the December 8 meeting if the staff is to
remain on schedule.
These "major" issues are:
D - development pattern (decided)
E - growth rate (decided)
I - 2 mile extraterritorial limit
J - park and recreation areas (decided)
Q - special zone for park lands (decided)
R - annexation
S - incompatible land use (decided)
T - increasing residential densities
U - locational criteria in planning and zoning
W - allow for multi -family housing
X - allow for lower-cost housing (townhouses, mobile homes, etc.)
DD - neighborhood conservation and protections
HH - additional outlying shopping centers
II - convenience shopping centers
JJ - balance of modes of transportation
KK - new arterial streets
LL - widening arterial streets
UU - preserving agricultural land
W - environment along Iowa River
*City of Iowa CIA
MEMORANDUM
DATU November 17, 1977
TO: Members of the Comprehensive Plan Coordinating Committee
FROM: David R. Lundquist, Assistant Planner
RE: Growth Management Techniques
A number of cities thoughout the nation have experimented with controlled
growth ordinances. Best known, and most analyzed in the courts and
elsewhere are the Ramapo, New York phased growth plan and the Petuluma,
California residential development control plan. These plans are quite
similar and both raise fundamental issues which must be considered by
cities contemplating similar schemes. This memorandum will summarize
the plans and discuss the considerations which should enter Iowa City's
plans regarding growth management.
Ramapo's phased growth plan essentially attempts to coordinate resi-
dential development with the town's ability to provide certain municipal
improvements and services. The Ramapo Zoning Ordinance places an
additional layer onto the residential plat approval process by requiring
persons who directly or indirectly cause land to be used for residential
purposes to secure a special permit before they can apply for site plan
or subdivision approval, or for a building permit. An applicant, in
order to receive a special permit, must achieve a minimum of fifteen
development points out a a possible twenty-three points. Points are
awarded on a sliding scale, based on the relative availability of five
municipal services to each proposed house on the plat. These services
include: sewers or approved substitutes, drainage facilities, roads,
fire houses and parks or recreation facilities including school sites.
If. a developer is unable to meet the eligibility requirements for the
special permit, he is prevented from applying for further approval. The
ordinance seems to have the effect in many instances of prohibiting
small landowers-builders who cannot secure the final permit from devel-
oping their parcels for nearly a generation. As part of its comprehensive
planning, the township has developed a schedule for the provision of
some of the five services to the land in the township over an eighteen
year period. The landowner -builder can either wait for the town to
qualify his property for the special permit according to its priority
for publicly -provided improvements as per the eighteen year captial
plan; or he has the option of providing fifteen points worth, or however
many necessary, of public improvements at his own expense. (In many
cases, this letter option is not economically feasible.)
As an alternative the landowner can apply for a variance. Also, a
developer may appeal for a Development Easement Acquisition if he does
not expect to be eligible for development approval under the joint
system for a number of years. If such an easement is acquired, the
assessed valuation of a given parcel of land is proportionately reduced,
upon advice of the Town Assessor, by reason of the prospective limitation
on the future use of the land.
• -2 •
Thus, a temporary restriction (albeit 18 years in some cases) upon
residential development was imposed in order to time growth. Yet, the
temporary nature of the restriction was important in the court challenge,
as the court held that since the restrictions were only temporary in
nature, they could not be considered on their face as an unconstitu-
tional taking of the landowner's property. The court pointed out that
the landowner's loss is also mitigated by the ordinance's provision for
a reduction in tax assessment and for voluntary construction of the
necessary facilities by the developer.
Although stating that it would not countenance exclusionary zoning, the
court found that sequential development and timed growth were not exclu-
sionary but were attempts to "provide a balanced cohesive community
dedicated to the efficient utilization of land. The restrictions con-
form to the community's considered land use policies as expressed in its
comprehensive plan and represent a bona fide effort to maximize popu-
lation density consistent with orderly growth."
The Petuluma Plan does not contain the "capital budgeting" requirement
of the Ramapo Plan. Rather, its approach was to ration growth to five
hundred dwelling units a year for five years. However, in nearly all
other areas of comparison, the Ramapo Plan and Petaluma Plan are very
similar. Ramapo calls its special permit a "residential developmental
use permit" while Petuluma calls its special permits "residential develop-
mental allotment." Both plans are based on a point system which includes
points awarded for the availibility of water and sewers, storm drainage,
fire protection, schools, etc. Both plans were supported by the citizens
of the respective communities, and both plans were designed to preserve
the "small town character" of the community. The following chart and
table compare the two plans and outline the procedure used in the Petuluma
Plan.
CHART I. COMPARISON OF RAMAPO AND PETULUMA PLAN
RAMAPO PLAN PETULUMA PLAN
Existence of capital budget Yes No
Point system for:
1.
Water and sewers
Yes
Yes
2.
Storm drainage
Yes
Yes
3.
Surface drainage
Yes
Yes
4.
Fire protection
Yes
Yes
5.
School impact
Yes
Yes
6.
Street linkages
Yes
Yes
7.
Environmental protection
Yes
Yes
B.
Open space
Yes
Yes
Purpose
to preserve 'small town character'
Yes
Yes
Wanted
by citizens
Yes
Yes
APPLICATION FILED
BY DEVELOPER:
The applicant will
include:
Site Utilintion Map,
Site Development Plan,
0 _3 0
TABLE II. PROCEDURE OF PETULUMA PLAN (Prom Rabin,
Modern Real Property Law 734 (1974 ) )
STAFF REPORT:
Planning Staff studies
applications and reports
to Iloard.
()0 days)
REEVALUATION:
The applicant may ask
the Board for a rcevvlua-
tion at this public hear.
ing• if the applicant is
dissatisfied with the re-
evaluation, he submits a
written notification of dis.
sent which will be fumish-
ed to the City Council.
BOARD EVALUATION:
The Board evaluates each
application on the basis
of:
Conformity with Plans.
Availability of Public
Facilities 4 services,
Quality of Dcsign and
Contribution to Pub.
lic Wc1farc S
Amenity (30 days)
PUBLICATION OF
RANKING:
The Board publishes the
point ranking of each
application.
PUBLIC HEARING:
Within 15 days of the
publication of ranking the
Board holds a public
hearing for the elarifiea.
tion and/or reevaluation
of point assignmcnis.
BOARD RECOM-
MENDATIONS:
_ _ _ _ _ _ The Board presents its
point rankings to the City
Council along with any
reevaluations and written
notifications of dissent.
CITY COUNCIL
AWARDS DF.VELOP-
hI ENT A LLOTM E• NTS:
After considering all
Properly submitted
appeals the City
Council awards De.
vclopment Allotments
in accordance with the
Board's point rankings.
The Petuluma Plan was originally struck down in court, but was vindi-
cated in August, 1975, by the U.S. Court of Appeals and the U.S. Supreme
Court refused to hear a further appeal. Thus it has been held that the
Petuluma Plan, which fixed the housing development growth rate at 500
dwelling units per year, required building permits to be divided evenly
between the west and east sections of the city and between single-family
dwellings and multiple residential units, which positioned a two hundred
foot wide "green belt" around the city to serve as a boundary for urban
expansion and which was enacted to preserve the city's small town character,
its open spaces and low density of population and to provide for orderly
pace of growth, was a reasonable exercise of the city's police power and
not violative of due process.
In considering growth management, Iowa City should carefully consider
the following:
Necessity of rg owth management here: Ramapo, Petaluma and other
cities employing growth control plans have experienced explosive
growth and rather severe strains on their ability to provide
municipal services. Iowa City by compairson is experiencing only
moderate growth with less strain on the city's ability to provide
essential services.
• -4-
2.
4 2. Whether Iowa City could curry demonstrate sufficient and
com reren.isi v anm— n to substantiate tTe Fip ase rg owt approach:
Ramapo was able to present a vast array of planning data in their
defense. In its statement of the facts in Golden v. Planning Board
the Town of Ramapo, the Court of Appeals cited the Town Master
Tn, wFose preparation included a four volume study of the
existing land uses, public facilities, transportation, industry and
commerce housing needs, and projected growth trends.... Additional
sewage district and drainage studies were undertaken, which cul-
minated in the adoption of a capital budget.' This impressive
detail allowed the court to open its consideration of legal issues
on the premise that, "the undisputed effect of these integrated
efforts in land use planning and development is to provide an
overall program of orderly growth and adequate facilities through a
sequential development policy commensurate with progressing
availability and capacity of public facilities."
While Iowa City certainly could prepare similar documentation, the
comprehensive plan to date does not attempt to document the necessity
for a phased growth approach, and as raised in 1 above, there is
some question whether strong documentation for such an approach
would exist in Iowa City. At any rate, before a phased growth
scheme could be implemented, adequate planning data in its support
would have to be developed. On the other hand, Iowa City's compre-
hensive plan should prove adequate to support a more limited growth
strategy of guiding development sequentially where the city wants
it, rather than limiting the rate of growth. (Discussion with Rick
Geshwiler 11/1/77.)
3. Whether ado tion of a hp ased growth program y an individual cit
on a uni atl eral basis ma actually interfere With the general
welfare of there ion an of the state: For example, such a
programcouTd—a versely affect the quantity, quality, cost, location
and opportunity for decent housing in a region, and merely force
the problem elsewhere in the region, rather than solving any long
range problems. According to some commentators the Ramapo Plan is
exclusionary in that it unilaterally slows or prohibits residential
development, restricts natural population growth, fails to absorb a
fair share of housing needs, reduces regional housing opportunities,
and operates to price the cost of new privately built housing
beyond the reach of many low- and moderate -income families in the
region. (See 24 Zoning Digest (1972), reprinted in Robin, Modern
Real Property Law 777-82 (1974), in which Mr. Randall W. Scott,
Director of the Urban Governmental Affairs Department of the
National Association of Home Builders and Mr. Richard May Jr. of
Planners Incorporated of Washington D.C., discuss the Ramapo type
ordinances.) Mr. Scott had the following comment about the Ramapo
Plan:
"the ordinance may superficially appear to be good planning,
for few would fault the idea that municipal improvements, such
as sewers and roads, should be coordinated with housing pro-
duction. But the Ramapo ordinance is a technique which, when
carefully examined as to its standards and overall effects,
could prove to be highly disadvantageous to the general
welfare of citizens of the region and of the state, other than
-5 0
those residing in the locality using the technique. This case
offers unfortunate precedent which could encourage the adoption
of unilateal local policies -in pursuance of seemingly valued
planning ideals - which is combined effect could severely and
adversely affect the quantity, quality, cost, location, and
equitable opportunities for decent housing in this country."
CONCLUSION
While growth management is a legitimate concern for the City of
Iowa City, the rate of growth and in ability to provide essential
services does not currently appear to necessitate a limitation on
residential development as in the Ramapo or Petuluma Plans. However,
Iowa City should attempt to guide development sequentially in
conformance with its comprehensive plan. A limitation on the rate
of development would only appear justified if an increasing rate of
growth occurs over the next few years and the City is unable to
keep pace with the provision of sewers, roads, fire protection and
other essential municipal services.
ISSUE KK: Miat policy should the City establish regarding the construction of new
arterial streets?
The policy that a City establishes concerning the construction of new arterial streets
can not only affect the way the transportation system functions, but can affect the
character of the City and future of neighborhoods.
Alternative 1: The City should build new arterial streets to meet current and anti-
cipated demand.
This alternative assumes that new arterial streets will be built to serve current and
projected demand. The Rock Island ExpressMly (west Campus Bypass) is an example of
such a facility.
Land Use and Social:
1. The Rock Island Expressway would provide easy access to the hospitals and sporting
events from I-80 and Coralville. This would relieve much of the pressure on U.S. 6 -
Highway 218, and intersections with Iowa Avenue and Burlington Street.
2. May encourage more workers and visitors to drive rather than taking transit.
3. The new University parking ramp would be easily accessible from the Rock Island
Expressway.
4. Northwest of Melrose, the expressway would have little impact as it is all open
space; southeast of Melrose, the expressway would disrupt some residences on the
west side of the river and would require some demolitions or relocations on the east
side.
5. Without improvement, this will increase the congestion at the 1st Avenue (Coralville)
intersection.
6. Would entail the construction of a new bridge across the Iowa River.
7. Would generate heavy traffic on Gilbert and Van Buren, Lower Muscatine and other
streets connecting the bypass with Highway 6.
8. In other instances, constructing new arterials will require demolitions or disruption
of neighborhoods; the faster flowing traffic will be hazardous to pedestrians.
9. Constructing new arterials wherever needed encourages residents to continue driving
rather than taking transit.
Economic:
1. Would require a m::ior capital expenditure for right-of-way acquisition, construction
and, in some ins=xes, relocation of displaced homeowners.
2. Will increase the maintenance burden for streets and highways.
3. Will lower overall property values for property in close proximity to the arterial.
4. Will remove more tax producing land from the City's tax roles.
S. Could be a major blighting influence in heavily developed areas which, in the long
run, would likely require heavy public investment for rehabilitation, renewal,
clearance, etc.
6. Will probably encourage additional vehicular traffic which will maintain the pressure
for further widenings.
Environmental:
1. Some open space will probably be destroyed as well as some buildings,
2. There will be a significant adverse impact on surrounding land uses due to noise and
air pollution caused by heavy traffic.
3. The view of the Iowa River will probably be cut off increasingly.
4. Auto domination with ensuing fuel use and pollution is encouraged.
Comment: For detailed analysis of the Rock Island Expressway, see Trafficways Report,
Legal:
What policy the City should establish regarding the construction of new arterial streets
is essentially not a legal question. However, it is essential that the City follow the
proper procedures under Iowa Code, Chapter 384 in contracting indebtedness and issuing
general obligation bonds and in levying special assessments for new streets.l
Alternative 2: The City should build new arterial streets only in peripheral locations.
This alternative assumes that new arterial streets will be built only in peripheral
locations. Scott Boulevard is an example. This provides a by-pass around the City.
Land Use and Social:
1. Would provide a truck route to the S.E. industrial park from 1-80 and Highway 1.
Truck traffic now filtering through the city streets would use the by-pass.
2. Removing truck and other through traffic from residential streets will increase
safety and enhance neighborhood image and identity.
3. Construction at this point in time will be less disruptive to other land uses since
much of this adjoining land is not developed.
4. Will be efficient for moving traffic around the City, so will save time and energy.
5. Careful zoning will be required to control potential strip development and deve-
lopment extending on the outer side of the by-pass into prime agricultural land.
6. May make the S.E. industrial park a more attractive and viable location.
7. Will require extensive construction to provide a by-pass around the City.
Economic:
1. Requires major capital expenditures for land acquisition and construction although
the costs would be considerably less since the land costs and certain construction
related costs such as grading would be lower.
2. Increases the maintenance burden for repair and upkeep of streets and highways.
3. Removes tax producing land from the tax roles.
4. Would probably spur development in peripheral locations especially noir major inter-
sections. Decentralized development is generally more costly to provide with city
services.
S. Further encourages the use of automobiles and discourages the use of transit.
Environmental:
1. There will be some destruction of agricultural lands and vegetation in stream areas.
2. Depending on the location of the peripheral arterials, adverse effects on nearby
land uses will vary. Noise and air pollution due to traffic will be present but,
depending on routing and buffering, may have only minimal effects on residential
areas.
3. The presence of an arterial street acts as a psychological and frequently as a
visual barrier to the areas it separates.
4. Some of the adverse effects due to traffic now using routes through residential
areas will be reduced.
• -3 •
Legal:
Analysis of Alternative 1 applies.
Alternative 3: The City should not build new :arterial streets except to directly serve
newly developing areas.
This alternative assumes that arterial streets will be extended to serve new areas as
they develop. The extension of first Avenue north of Rochester would be an example.
Land Use and Social:
I. Will provide an east -west route across Iowa City, which would reduce the need for
residents in this area to filter through downtown.
2. Will reduce pressure on Dubuque and other streets in the CBD.
3. Will considerably increase speed noise and nmount of traffic through this area.
4. Will cause serious problem with the Dubuque Street intersection.
S. Will result in a considerable increase in noise and amount of traffic for whatever
streets are connected to these arterials. Scott Boulevard, when constructed, will
be more able to handle this better than first Avenue.
G. Would cause disruption and probably a decrease in property value for neighborhoods
adjoining these streets.
7. Will particularly disadvantage those with adjoining property and those living
close -by these arterials; however, will decrease through traffic in the central
city, so will benefit those residents.
8. Will encourage development of northern Iowa City.
Economic:
1. Same as alternative two.
Environmental:
1. There will be considerable destruction of the vegetation and diverse habitats in
the area north of Rochester Avenue.
2. There will be adverse edge effects due to noise, air and visual pollution on the
residential areas close to the new arterial.
3. There will be considerable adverse effects on residential areas currently served
by first Avenue due to increased traffic from the new arterial.
4. There may be some adverse effects on Hickory Hill Park clue to noise from the ar-
terial.
Legal:
1. Analysis of Alternative 1 applies.
Alternative 4: The City should only build new arterial streets in areas of low
residential impact or to relieve impact in existing residential areas,
This alternative assumes that impact upon residential areas is the most important
criteria in determining what new arterial streets will be built. With this alter-
native new arterial streets would be built only if they did not disrupt existing
residential areas and also if they would relieve existing residential impact.
(Van Buren, Court, Dubuque would be examples,)
-4 -
Land
Land Use and Social:
1. Some existing traffic problems will probably continue in the downtown area, and
will increase with possible street closures.
2. Will encourage transit ridership to the downtown area where arterials are congested.
3. May adversely effect downtown business if the widening of arterials is too limited.
4. Will protect neighborhoods from further disruption and hazards associated with
increased traffic.
S, Will allow construction of new arterials in other locations which will relieve
pressure on these streets.
G. Will minimize relocation and demolishing of homes.
7. Will maintain the quality, identity and the property values within neighborhoods.
Economic:
Same as alternative one except acquistion and construction costs could be lower.
Environmental:
1. There may be some destruction of vegetation and open space.
2. No adverse effects on residential areas.
3. There may be some relief from existing adverse effects due to arterials in some
residential area.
4. Very limited construction of new arterials will de-emphasize automobile use and
will probably somewhat decrease pollution and Fuel use.
Legal:
Analysis of alternative I applies.
SUMMARY TABLE
Land Use
Economic Environmental Legal
and Social
Alternative
1
+/_
+
Alternative
2
+/_
+/_ +
Alternative
3
+/_
+
Alternative
4
+
_ + +
FOOTNOTES
i.aL
1. The opening, widening, extending, grading and draining; the right of way of
streets, as well as the repairing of any street improvements is an "essential
corporate purpose" under Iowa Code Section 384.24 (3)(a). As such, the City
must follow the provisions of Section 384.25 in order to contract indebtedness
and issue general obligation bonds to provide funds to pay alI or any part of
the cost of a project. (Notice of action including a statement of the amount
and purpose of the bonds, and time and place of council meeting; receipt of oral
or written objections from any property owner.)
Under Section 384.38 a city may assess the cost of public improvements to
private property. Section 384.42 and those allowing specify the procedures
council must follow to construct or repair a public improvement to be paid for
in whole or in part by special assessments.
ISSUE LL: h9iat policy should the city establish regarding the widening of existing
arterial streets?
The policy Iowa City selects regarding the widening of arterial streets will have
a great impact upon the capacity of the trafficways system and the environmental
quality of the center city.
Alternative 1: The city should widen existing arterial streets to meet current and
anticipated demand. (neighborhood meetings, surveys)
This will reduce pressure for new arterials.
Land Use and Social:
1. Widening existing arterials will infringe on property owners fronting on those
streets.
2. Increased traffic flows will be more disruptive and hazardous to the neighborhoods.
3. Widening selected arterials will reduce traffic filtering through other streets.
4. Will provide improved access to the downtown and the ramps.
S. Will not work to encourage transit ridership.
6. For some existing arterials, the right-of-way is available for street expansion.
7. Additional buffering would be required to screen impacts of increased traffic flows.
Economic:
Same as Issue KK alternative 1.
Environmental:
1. This will result in little destruction of vegetation or scarce habitats, though
some open space may be lost.
2. There will be an increase in adverse effects already present due to heavy traffic
on arterials. Noise and air pollution in particular will increase as well as
psychological stress due to traffic.
3. Street widening will have the effect of bringing the automobiles and trucks
closer to the houses; businesses, etc, which are adjacent making some form of
screening or buffering essential.
Legal:
Analysis of Issue KK, alternative I applies.
Alternative 2: .The city should widen existing arterial streets only in areas of low
residential impact or to relieve existing impacted residential areas. (neighborhood
meetings, surveys)
This alternative is similiar to alternative 4 for Issue KK. Same analysis applies.
Refer to Issue KK alternative 4.
Alternative 3: The city should not widen existing arterial streets in residential
areas. (neighborhood meetings, surveys)
-2_
I�
L
CI
This alternative absolutely prohibits widening of arterial streets in exisitng
residential areas.
Land Use and Social:
1. Existing traffic problems will continue, and will increase with street closures
(eg. Dubuque) and increasing population and traffic levels.
2. Will encourage transit ridership as streets become more congested.
3. Will adversely affect downtown businesses as streets become too congested to
efficiently move traffic.
4. Use of the parking facilities may be inhibited by poor access.
5. Will protect neighborhoods from further disruption and hazards associated with
increased traffic.
G. Will prevent relocation and demolition of homes due to street expansion,
7. Will maintain the present level of traffic on these streets, which in some
cases is unacceptably high.
Economic:
1. Would help to preserve property values in existing neighborhoods.
2. Would make it less likely that public investment would be required for rehabil-
itation, renewal or clearance as a result of the blightening influences of
traffic.
3. Makes automobile driving a "costlier" transit alternative ;md could shift some
people to the bus system.
4. Maintains the burden of repair and maintenance for existing streets only.
Environmental:
1. No trees or additional open space will be lost due to street widening.
2. There will be no increase in adverse impacts on residential areas, These adverse
impacts include noise and air pollution, temperature extremes, and psychological
stress due to traffic congestion, difficulties in crossing roads, getting in and
out of driveways, etc,
Legal:
This policy would appear to have no adverse legal impacts.
SUMARY TABLE
Land Use Economic Environmental Legal
and Social
Alternative I +/- _ +/_ +
Alternative 2 + + +
Alternative 3 +/- + i +
0
ISSUE DPI: How should the City protect residential areas from inappropriate levels of
through traffic?
Protecting residential areas from the impact of inappropriate levels of through traf-
fic is a difficult balancing task. Balance is needed betieeen protection and access.
Not only is convenience important, but predictable emergency access is imperative.
Alternative 1: The City should construct traffic diverters at selected intersections
to protect residential areas.
Refer to Issue DD, Alternative 4.
Alternative 2: The City should install additional signage and enforce traffic regu-
lations strict]), in residential areas.
Refer to Issue DD, Alternative 3.
Alternative 3: Explore possibilities of screening or buffering residences from arterial
streets.
This alternative assumes that in existing residential areas, landscaping along heavily
travelled streets would be increase(] by the use of trees, shrubs and earthen berms at
the City's expense or as a cost-sharing program. In new areas, major streets would
border residential areas on rear lot lines only and dense evergreen screening would be
supplied by the developer.
Land Use and Social:
1. Will improve neighborhood quality and image, and will make long-term residency
more probable.
2. Buffering will probably increase the value of the property.
3. Will somewhat affect subdivision design (ie., streets on rear lot lines).
4. Will provide for a logical extension of land use, and hill he efficient since
buffering allows incompatible uses to he located closer together.
S. Buffering along streets in older neighborhoods may cause interference with over-
head utility cables.
6. Those whose property lies adjacent to or nearby heavily traveled streets will
benefit the most.
7. Developers will be disadvantaged by the required time and expense of providing
buffering.
8. Purchasers of housing in new areas will be disadvantaged by the costs passed on
by the developers, but will benefit from improved orientation and screening.
Economic:
1. Would require extensive expenditures to provide screening sufficient to buffer the
negative side-effects of traffic.
2. Would probably increase overall property values in older neighborhoods as they
become more desirable living environments.
Environmental:
1. Screening and buffering will decrease adverse effects of arterial streets by
reducing noise, filtering air, reducing glare.
2. Appearance of the street and area will he improved.
3. The presence of shade trees or evergreens provides a psychologically pleasanter
environment.
Legal:
The city could provide such trees, shrubs and berms along the parking between side-
walk and £urb, and could even require the abutting property owner to maintain this
property. However, requiring developers to provide dense evergreen screening of
arterial streets may be subject to attack as aesthetic zoning. See Issue C, Footnote 7.
SUMMARY TABLE
Land Use Economic Environmental Legal
and Social
Alternative
1 +
+
+
+
Alternative
2 +
+/_
+/_
+
Alternative
3 +
+/_
+
+/_
-3 -
FOOTNOTES
Legal
1. Iowa Code Section 364.12 (2)(c) provides, "The abutting property owner may be
required by ordinance to maintain all property outside the lot and property lines
and inside the curb lines upon the public streets, except that the property
owner shall not be required to remove diseased trees or dead wood on the publicly
owned property or right of way."
Currently Iowa City Municipal Code Section 3.38.3 (A) provides, "No person
except the City or a person hired by the City shall treat, plant, trim, remove,
or otherwise disturb any tree or shrub on any street or other public property
without first filing an application and procuring a permit to do so from the
Forester."
T I
ISSUE NN: h7rat policy should the city follow in regard to residential parking?
Alternative 1: Residential parking on city streets should be just as it is nor..
(General Survey - 42.9%)
This alternative assumes that no major change be made in the existing policies
regarding parking in residential areas.
Land Use and Social:
1. .Impairs safety by blocking view.
2. Impedes traffic flow which probably discourages traffic to some extent,
3. Is unslightly and generates circling to find parking spaces (in neighborhoods
near the CDD) which results in noise and disruption for the neighborhoods.
4. where on -street parking is a problem, it is probably a deterrent to prospective
residents (especially families with children).
S. Buffering could help reduce the noise and visual impacts associated with on -
street parking, although buffering for this purpose can not eliminate some
problems (obstructing view) and may cause other safety and upkeep problems.
6. On -street parking provides extra parking for residents when sufficient off-
street spaces are not available.
7. Provides non -metered parking for students, shoppers, and workers in the neigh-
borhoods surrounding the CBD.
Economic:
1. Encourages automobile traffic by providing free parking in areas adjacent to
the university and downtown,
2. Negatively impacts existing older neighborhoods by making them less desirable
living environments especially for families with young children.
3. Increases maintenance costs for streets and alleys by encouraging traffic to
use them while looking for parking spaces.
4. Causes a loss of revenue for the parking system as drivers prefer to utilize
free spaces rather than pay to use city owned lots and metered spaces.
Environmental:
1. The effect of current residential parking policy is to make some streets crowded
with parked cars which is visually and psychologically unpleasant,
2. liliere cars are parked on both sides of relatively narrow streets bicycle riding
is hazardous both because of lack of space for cars to pass the bicycles easily
and because of opening car doors,
Legal:
This alternative would have no adverse legal impacts.
Alternative 2: Restrict parking to one side of residential streets.
This alternative assumes that parking on residential streets would be restricted to
one side except on streets with enough width to allow for parking on both sides and
two travel lanes, (minimum forty foot width)
Land Use and Social:
Same as Alternative 1, except impacts arc reduced with the decrease of parking.
Also, storing of cars will become more of a problem.
Economic:
1. Reduces the volume of parking in residential neighborhoods by commuters, however,
it encourages storage parking.
2. Permits easier traversing of residential streets and thereby encourages additional
automobile traffic in those areas.
3. Could increase the revenues of parking system by eliminating additional free
parking and forcing additional cars into city owned lots and metered spaces.
Environmental:
1. This will reduce the visual (as well as actual) crowding effect.
2. Bicycle riding is less hazardous, although on the side of the street where
parking is permitted bicyclists may still be "squeezed" into parked cars or hit
by opening car doors.
Legal:
The City may restrict parking to one side of residential streets under Iowa Code
Section 321.236 (1).
Alternative 3: Residential parking on city streets should be increased by converting
side streets into small landscaped parking bays.
This alternative assumes that in areas where on -street parking is a problem, additional
spaces could be provided by converting side streets into landscaped parking bays for
perpendicular parking.
Land Use add Social:
1. Will reduce hazards from blocked view.
2. Will reduce impediment to traffic flow.
3. If designed correctly could be less of an eye -sore.
4. Will generate circling of traffic trying to find parking spaces which results
in noise and neighborhood disruption.
S. Will increase on -street parking spaces.
6. Since the parking will be more compact, it will be easier to buffer.
7. Will provide increased non -metered parking for students, shoppers and workers
in the neighborhoods adjoining the CBD.
B. Will benefit others in the neighborhoods but will particularly disadvantage those
whose property adjoins the parking bays.
Economic:
1. Would require capital expenditures for reconstruction of existing curbing and
for the trees and shrubs used for the bays.
2. Without concommitment restrictions for on -street parking elsewhere in the vicinity
_3_
of the bays, the net effect will be to increase the number of cars parking
in residential areas.
3. Increases traffic volume on residential :streets especially thasc in close prox-
imity to the university and downtown, and thereby reduces their desirability as
living environments and negatively affects their property values.
4. Would negatively affect the revenues of the parking system by encouraging the
parker to use free parking spaces rather than city owned lots and metered spaces.
Environmental:
1. By making more parking available "cruising" to find parking spots may be somewhat
reduced.
2. This encourages the storage of more cars on streets resulting in visual pollution.
Legal:
This alternative would have no adverse legal impact.
Alternative 4: The city should generally increase the Supply of residential parking
on the street.
This alternative assumes the City should allow more on -street parking by eliminating
odd -even and one -side parking.
Land Use and Social:
This alternative will generally increase the intensity of impacts of Alternative 1.
Will reduce the enforcement necessary.
Economic:
1. Would encourage, in older neighborhoods, adjacent to the CBD and the university,
more traffic and additional storage parking as well as commuter parking.
2. Negatively affects the revenues of the parking system by providing free parking
to individuals who might normally park in cit,v-owned ramps or metered spaces.
S. Increases maintenance costs for streets since increased traffic 1611 increase the
wear and tear on the streets.
4. Negatively impacts property values by creating ml auto -dominated roidential
environment.
Environmental:
1. This will cause additional crowding of cars on the streets which is unpleasant
for residents and transients.
2. Bicycle riding will be more ha2ardous and will be discouraged resulting in more
reliance on automobiles.
Legal:
This alternative would have no adverse legal impact.
Alternative S: The city should require developers
to provide more off-street puking,
This alternative assumes the City should increase its off-street parking requirements
T_
0
for multi -family residential uses
of bedrooms/unit.
Land Use and Social:
0
This assumes a sliding -scale based on the number
1. Will reduce the need for on -street parking, although students, shoppers, and workers
will still park in neighborhoods surrounding the CBD.
2. May encourage multi -family residents to maintain cars.
3. May increase the lot size required for multi -family construction and will cost
the developer more as parking spaces increase; this cost may be passed on to
the renter.
4. A 'sliding -scale' requirement will probably be closer to providing the needed
spaces without being excessive.
5. Particularly will benefit multi -family residences, and will probably benefit
other neighborhood residents, too.
Economic:
1. Could lead to a shift in the type and size of multi -family housing units built.
2. Could lead to an increase in rents if additional land is required to accomodate
additional parking.
3. Would reduce the amount of useable open space in multi -family housing projects.
4. Would help eliminate the on -street parking congestion problem, in newer neigh-
borhoods.
5. Unless coupled with some restriction as to on -street parking, this alternative
could free tip on -street spaces and thereby attract additional commuters and
storage parking.
Environmental:
1. Fewer cars parked on the street results in a pleasanter appearing neighborhood.
2. Bicycle riding will be less hazardous and therefore encouraged,
3. Less on -street parking will probably reduce the neighborhood noise level.
Legal:
Requiring developers to provide more off-istrect parking is:a valid exercise of muni-
cipal zoning under Iowa Code Chapter 414.
Alternative 6: In neighborhoods when there is an identifiable parking problem, a
fee should be charged for a permit for residents and nonresidents of the neighbor-
hood to park in the neighborhood, and metered parking should be provided for visitors
and guests.
This alternative assumes that in problem parking areas residents should pay for add-
itional City enforcement.
Land Use and Social:
Same as Alternative 1, unless permits are limited in number. Will eliminate circling
to find spaces. This is also a disadvantage to residents who would have to start
paying for parking.
-5-
•
•
Economic:
1. Would reduce or eliminate storage and commuters parking in problem areas, espe-
cially those in close proximity to the university and downtown.
2. Would require increased enforcement in order to monitor compliance, which would
increase operating costs.
3. Could increase parking system revenues by forcing those parkers who previously
parked free to use city -owned lots and metered spaces.
4. Would enhance the quality of neighborhood environments by reducing automobile
traffic and reducing the blighting influence of parked cars, which in turn
enhance property values.
5. Could increase revenue intake by the city as the fees are collected for the
parking permits,
Environmental:
No environmental impact.
Legal:
1. Constitutional: Such a fee for a permit treats people living in a neighborhood
with an identifiable parking problem differently than those living in a neighbor-
hood with no such problem. Yet, it most likely would be upheld constitutionally
as a rational classification that furthers a proper governmental purpose, pro-
vided that all persons affected by the classification are treated equnlly.
2. Code: Iowa Code Section 321.236 (1) permits the city within the reasonable exp
cise of the police power to regulate the standing or parking of vehicles,
3. Case Law: Indeterminate.
Alternative 7: In neighborhoods where there is an identifiable parking problem,
residents of the neighborhood should be issued a permit to park and nonresidents
should not be allowed to park in that neighborhood, except that metered parking
should be provided for visitors and guests.
This alternative assumes that in problem parking areas residents should not have to
pay for service for which other City residents don't have to pay.
Land Use and Social:
1. Will probably decrease the on -street parking, so will reduce associated hoc:n•ds
and disruption.
2. Will assure residents of having parking spots.
3. Will eliminate shoppers, students, and workers from parking on these streets,
and will make storing of cars impossible.
4. Will improve the image and identity of the neighborhoods, and will make them
more attractive to prospective residents.
S. Will probably increase the use of the parking ramps and other metered parking
downtown.
6. May require some additional enforcement although residents of the neighborhoods
could be aske4. to call in any complaints, etc., to avoid unnecessary patrolling.
7. Will particularly benefit residents of neighborhood:: surrounding the C111); will
disadvantage others who have been parking there.
6_
•
Economic:
Same as Alternative b, except thcCity would not receive any additional revenue.
Environmental:
No environmental impact.
Legal:
The City could so regulate parking and this would allow residents of the neighbor-
hood to park in their own neighborhood without paying an additional fee that resi-
dents in other neighborhoods do not have to pay.
Alternative 8: The City should do away with odd -even parking in residential areas.
This alternative assumes that long term parking is not a problem and parking on one
side of the street is appropriate.
Same analysis as Alternative 2.
Alternative 9: The City should extend odd -even parking to additional areas.
This alternative assumes that odd -even parking should be extended throughout the
City where there are parking problems.
Land Use and Social:
Similar to Alternative 1. It does eliminate the problem of storing cars, but is an
inconvenience to residents who park there. Requires patroling of the neighborhoods.
Economic:
1. Would eliminate additional storage parking and eliminate some additional commuter
parking.
2. Unless the odd -even parking is extended beyond the point at which people are
still willing to walk done to move their cars everyday, they move to the next
closest area without odd -even parking.
3. Partially reduces the visual blighting influence which excessive numbers of
parked cars have upon the neighborhood.
4. Forces more parkers to use city -owned lots and metered spaces which will enhance
the revenues of the parking system.
Environmental:
Environmentally effect is same as Alternative 2.
Legal:
This would be within the City's authority and would present no adverse legal impacts,
enforcement and personnel problems aside.
Alternative 10: The City should combine one or more of the above alternatives in
its policy.
No analysis.
F
-7-
FOOTNOTES
1. Within zoning districts the City may regulate and restrict the erection, con-
struction, reconstruction, alteration, repair or use of buildings, structures
or land. Iowa Code Section 414.2. Under Section 414.3 such regulations shall
be made in accordance with a comprehensive plan and designed to lessen congestion
in the street. Thus requiring more off-street parking in a given district
would be valid regulation designed to lessen congestion in the streets.
SMNIARY TABLE
Land Use
Economic
Environment
Legal
and Social
Alternative
1
+
Alternative
2
-
+/_
+/_
+
Alternative
3
+/-
+/_
/_
+
Alternative
4
-
0
Alternative
5
+/-
+/-
+
+
Alternative
6
-
+
0
+
Alternative
7
+
+
0
+
Alternative
8
+/-
+/_
+
Alternative
9
+/-
+/_
+
Alternative
10
No analysis
FOOTNOTES
1. Within zoning districts the City may regulate and restrict the erection, con-
struction, reconstruction, alteration, repair or use of buildings, structures
or land. Iowa Code Section 414.2. Under Section 414.3 such regulations shall
be made in accordance with a comprehensive plan and designed to lessen congestion
in the street. Thus requiring more off-street parking in a given district
would be valid regulation designed to lessen congestion in the streets.
ISSUE oo: In what manner should the City attempt to increase intersection safety
and efficiency?
Safety is a key aspect of a good traf.ficways system. Since most traffic congestion
and accidents occur at intersections, they are probably the most important target for
improving trafficway safety.
Alternative 1: Additional signals should be installed at selected intersections
throughout the City.
This alternative assumes that if signals were installed at selected intersections
overall traffic safety and orderliness would he improved. Representative intersections
would be Burlington $ Governor, Gilbert and both Mnrket and Jefferson, Clinton
and Market.
Land Use and Social:
1. Will reduce the potential for auto -auto and auto -pedestrian conflicts.
2. Will slow traffic flow on the major streets, but will make access onto these
streets from other streets easier and faster,
3. May encourage some drivers to use other streets to avoid stop lights.
Economic:
1. Would require a heavy capital expenditure for the purchase of the traffic lights.l
2 Effectively increase the capacity of. streets.
3. Will require an increase in the operating budget for repair and maintenance.
Environmental:
1. Any increased safety measures at intersections will probably reduce the stress
of driving.
2. Signals increase the number of "stops and starts" and therefore increase fuel
consumption G pollution somewhat.
Legal:
This alternative would have no adverse legal impacts. Iowa Code Section 321,236 (2)
permits local authorities to regulate traffic by means of police officers or traffic -
control signals.
Alternative 2: Additional turning lanes should be provided.
This alternative assumes that %ehcre high volume turning movements are observed,
reserved lanes should be provided for storage of turning vehicles to allow travel
lanes to •remain open for through traffic, Representative locations would be Riverside
and Highway 1 and US 6, Gilbert and Kirkwood and Denton and Riverside.
Land Use and Social:
1. Will increase the capacity and the rate of traffic flow on these streets.
2. May increase the use of these streets which would decrease the use of other
streets not designed for high levels of traffic.
3. Will increase safety at these intersections.
4. Will require some reconstructi.on which may cut into the adjacent properties if
insufficient right-of-way exists,
S. May benefit businesses adjoining these intersections by relieving traffic conges-
tion.
Economic:
No economic impact.
Environmental:
1. Open travel lanes for through traffic result in smoother traffic flow, fewer
"stops and starts" and therefore less noise and less fuel consumption.
2. Any improvement in traffic flow at in intersection will reduce delays and irri-
tations and will therefore reduce driving stress somewhat.
Legal:
This alternative would have no adverse legal impacts. Iowa Code Section 321.236 (9)
permits local authorities to regulate or prohibit the turning of vehicles at and
between intersections.
Alternative 3: The City should develop a truckway plan to route truck traffic
around the City and lessen truck traffic on Highway 1, Governor and Dodge Streets.
This alternative assumes that a truck bypass of Iowa City should be developed by
rerouting Highway 1 along the cast and south sides of Iowa City. Through truck
traffic would then be restricted to State and Federal Highways.
Land Use and Social:
1. Would provide direct truck access to the S.E. industrial park without disrupting
neighborhoods along Dodge and Governor.
2. Removing truck traffic from residential streets would increase safety and enhance
neighborhood image and identity.
3. Constructing a truckway at this point in time would be less disruptive to other
land use since much of this land is not yet developed.
4. Would be efficient for moving trucks and other traffic around the City. so would
save time and energy.
S. Careful zoning would be required to avoid strip development and development ex-
tending on the outer side of the by-pass into prime agricultural land.
6. May make the S.E. industrial park a more attractive and viable location.
7. Would require extensive construction and consumption of land.
Economic:
1. would improve the living environment along those streets and consequently en-
hance property values.
2. Could reduce some of the need for buffering and screening along those streets.
Environmental:
1. Since trucks are big noise and air polluters routing them over a by-pass will
be very beneficial in terms of reduced pollution to the residential areas the
trucks currently pass through on Highway 1.
2. The extra fuel required by trucks for any additional distance traveled will pro-
0
bably be offset by reduced fuel consuption due to fewer "stops" for stoplights.
Legal:
This alternative would have no adverse legal impacts. Iowa Code Section 321.473
permits local authorities by ordinance or resolution to prohibit the operation of
trucks or other commercial vehicles upon highways under their jurisdiction.
Alternative 4: The City should combine one or more of the above alternatives in its
policy.
Some combination of the above.
SUINL+b1RY TABLE
Land Use Economic Environment Legal
and Social
Alternative 1 + _ +/_ +
Alternative 2 + 0 +
Alternative 3 + + + +
Alternative 4 no analysis
EOOTNOTT_S
Economic
1. Estimated cost of signalizing an intersection is approximately $10,000.
a
ISSUE PP: What should the city policy be in regard to pedestrian traffic?
Alternative 1: The City should construct walkwa,vs for pedestrians.
This alternative assumes that the City would finance and construct needed walkways
for a comprehensive walkways system.
Land Use and Social:
1. Would increase safety for pedestrians.
2. May increase the amount of pedestrian travel, as walking would be more pleasant
so perceived distances would be shorter.
3. Would maximize choice of mode for travelers, and would provide better access
to facilities for non -drivers.
4. Acquiring rights-of-way prior to or concurrent with development would help in
providing direct routes without infringing on the privacy of adjoining property
owners.
Economic:
1. Would require right-of-way acquistion in those areas where proposed walkways
would utilize land which the City does not own or have casements for.
2. Would increase operating costs as additional repair and maintenance burdens
would be assumed.
3. Would require a significant capital expenditure for constniction of the walkways.
Environmental:
1. A comprehensive walkway system will probably encourage pedestrian over auto-
mobile traffic, and thus reduce fuel consumption and pollution.
2. Walkways will provide safety for pedestrians which in turn makes walking a
pleasanter mode of transportation.
Legal:
1. Constitutional: appears to raise no constitutional issue.
2. Code: Presumably the construction of a walkwny for pedestrians would be an
"essential corporate purpose," and therefore a special city election to vote upon
the question of issuing bonds for such a walkway would not he necessary.]
The city is responsible for the care, supervision and control of public grounds,
streets, sidewalks, alleys, bridges, culverts, overpasses, underpasses, grade
crossing separations and approaches and must keep all public ways, squares and
commons upon, in repair, and free from niisance.2
3. Casc Law: Indeterminate.
Alternative 2: The City needs to construct more sidewalks.
This alternative assumes that the City would construct additional walkways and bill
adjacent property owners, in accordance to the Walkways Study flan,
Land Use and Social:
Same as Alternative 1, except that it would be a distinct disadvantage to adjacent
property owners while benefiting a much larger population.
licollolllic
1. Would require right-of-way acquistion in those areas where the walkways would
utilize land which the City does not own or have easements for.
2. Would increase operating costs as additional repair and maintenance burdens
would be assumed.
3. The City would be required to make significant capital expenditure, recoverable
only over a long period of time through special assessment.
Environmental:
Same as for Alternative I.
Legal:
1. Constitutional: Appears to raise no constitutional issue.
2. Code: The construction, reconstruction, and repair of sidewalks and pedestrian
underpasses and overpasses and the acquistion of real estate needed for such
purposes is an "essential corporate purpose." See Issue PP alternative 1 above
and footnote 1.
3. Case Law: Not applicable.
Alternative 3: The City should establish linear parks along streams and waterways
through which walkways could be established.
This alternative assumes that the City would construct walkways in linear parks alone
creeks and the Iowa River.
Land Use and Social:
Same as Alternative 1, except that it would not infringe on the privacy of property
owners as these would be separate from residential areas. This would involve ac-
quiring a considerable amount of land for those lincar parks.
Economic:
Same as for Alternative 2 except the capital expenditures would not be recoverable.
Environmental:
Same as for Alternative 1. This would make good use of natural corridors and permit
citizens to walk away from streets in areas where noise and air pollution due to
automobiles is reduced considerably.
Legal:
1. Constitutional: Provided that just compensation was paid, it would appear to
raise no constitutional issue.
2.
Code: Establishing linear parks would_appear to be a general corporate purpose
under Iowa Code Section 384.24 (4)(b).' As such, an election following the
procedures of Section 384.26 would lie necessary before the council may institute
proceedings for the issuance of bonds.4
3. Case Law: Not applicable.
Alternative 4: The City should amend the subdivision requirements in regard to
sidewalks so that sidewalks would not be constructed on both sides of the street,
and/or Sidewalks could he placed along rear lot lines array from the street.
This alternative assumes that existing subdivision standards for walkways are too
inflexible and alternatives systems should be easier to implement through subdivision
review procedures.
Land Use and Social:
1. Would not affect the safety of pedestrians.
2. Would provide more freedom in subdivision design, and in lot use and design.
3. May require buffering as walkways along back lot lines may be somewhat dis-
ruptive to residents.
Economic:
No significant economic impact.
Environmental:
1. Sidewalks on rear lot lines would probably encourage pedestrian use since
they would be separated and screened from the air and noise pollution of
automobiles on the street.
2. Sidewalks on one side of the street only permit more space for plantings on the
other side (larger trees, shrubs etc).
Legal:
This alternative would appear to have no adverse legal impacts. Currently, side-
walks are required on both sides of all streets except industrial streets,
Alternative S: The City should combine one or more of the above alternatives in
its policy.
No analysis.
• 4 •
SUNhL4R1' TABLE
Land Use Economic Environmental legal
and Social
Alternative 1 + + +
Alternative 2 +/_ + +
Alternative 3 + _ + +
Alternative 4 + p + +
Alternative 5 no analysis
FOOTNOTES
Legal
1. Iowa Code Section 384.25. Rather, notice of the proposed action, including
a statement of the amount and purpose of the bonds, and the time and place of
the meeting at which council proposes to tale action for the issuance of the
bonds must be published. At the meeting council receives objections, and then
may take additional action for the issuance of the bonds. Any resident or pro-
perty owner may appeal the decision of the council to take additional action to
district court within 15 days after the additional action is taken, but the
additional action of the council is final and conclusive unless the court finds
that the council exceeded its authority.
There may, however, be some ambiguity as to whether pedestrian walkways fit the
definition of an "essential corporate purpose." Under Section 384.24 (c),
"essential corporate purpose" means the construction, reconstruction, and re-
pair of sidewalks and pedestrian underpasses and overpasses, and the acquistion
of real estate needed for such purposes. 14hile this probably covers pedestrian
walkways, they still might be construed as facilities or improvements which are
necessary for the operation of the city of the health and welfare of its citi-
zens, and thus a "general corporate purpose" under Iowa Code Section .384.24 (4)(i).
2. Iowa Code 364.12 (2).
3. Section 384.24 (4)(b) provides, "General corporate purpose means the acquistion.
construction, reconstruction, enlargement, improvement, and equipping ofcommunity
center houses, recreation grounds, recreation buildings, juvenile playgrounds,
swimming pools, recreation centers, parks and golf courses, and the acquistion
Of real estate therefor."
4. Iowa Code Section 384.26
ISSUE QQ: What other alternatives should the City explore to solve traffic problems?
Recent interest in systemic solutions to many types of problems has sparked interest
in "systems" solutions to traffic congestion. Instead of trying to deal with traffic
as it becomes a problem, systems solutions offers the possibility of avoiding the
problem in the first place.
Alternative 1: Encourage major employers to stagger employment hours.
This alternative assumes the City would actively encourage major employers to stagger
working hours, through coordination.
Land Use and Social:
1. Will break-up the "rush-hour" traffic into smaller peaks, which means fewer
cars on the streets at a time, and fewer riders on the buses at a time.
2. Will decrease pressure for new or improved arterials and intersections, and
decreases need for buses for peak periods.
3. Will allow more freedom of choice in working hours, and will probably require
less travel time.
4. .Particularly will benefit workers now on a typical schedule (eg. 6:00 to 5:00).
Economic:
1. Could help reduce the need for additional or expanded arterial streets as peak
traffic hours would be spread over longer periods of time which would reduce
the volume of traffic at anyone particular time.
2. Could reduce operating costs for the transit system by reducing the need to run
large number of buses to accomodate peak hour demand.
3. Could increase operating costs for employers who participate in the program
since it would require a longer operating day.
Environmental:
1. This alternative would reduce traffic congestion at peak periods. INllereas
this will not reduce the total number of cars or distance traveled, there
will probably be some decrease in fuel consumption and pollution due to auto-
mobiles because of smoother traffic flows and less "stop -start" traffic.
2. Less traffic congestion will result in less driving stress, particularly at the
end of the working day.
Legal:
Such a policy of active encouragement would appear to raise no adverse legal impact.
Alternative 2: Encourage car pooling.
This alternative assumes the City would actively encourage car pooling by discounting
parking costs for several people in one car and by public awareness advertising.
Land Use and Social:
1. Will decrease traffic loads, so will reduce pressure for new or improved streets
and intersections.
-2-
2. Will reduce the need for parking spaces, so this land can be used for green
space or other uses.
3. Would allow workers to live further from employment before travel costs become
prohibitive.
4. Will save on energy, Lind, personal time, and traveling and street costs.
5. Car pooling restricts personal choice somewhat.
Economic:
1. Would reduce the demand for new or expanded arterials as the absolute number of
vehicles using city streets at peak hours would he reduced.
2. Could reduce parking system revenues since fewer cars would be using city lots
and metered spaces.
3. Could reduce maintenance and operating costs since fewer cars would be using city
streets requiring less maintenance and a reduced demand for signalization, chan-
nelization, etc.
4. Could reduce transit system patronage and revenues as people find car pools no
utilize rather than buses.
Environmental:
1. Car pooling decreases the number of automobiles in use and the total fuel consump-
tion and air pollution.
2. A smaller number of parking spaces will be required at major destinations pos-
sibly leaving more open space and vegetation.
3. The psychological stress of driving is reduced because driving is usually on a
rotating basis.
Legal:
1. Constitutional: Although recent decisions declare advertising is a public pur-
pose for which the taxing power may be exercised, it is held that, to authorize
the levy of any tax for this purpose or appropriate public money theyefore,
express grant must exist, either statutory or in home -rule charters.
2. Code: The City's home rule power is broad enough to cover public awareness
advertising, though the council must have authorized the expenditures of money
for this lypose by passage of a motion, a resolution, and amendment, or an
ordinance.
3. Case Law: Indeterminate.
Alternative 3: Construct commuter parking lots and encourage employers to run shuttle
busses to and from centers of employment.
This alternative assumes that commuter parking lots could be established at major
destinations, (Hospital, flancher, Shopping Centers) and shuttle busses would be run
to other major destinations.
Land Use and Social:
1. llancher and the Hospital lots are up to capacity with students and staff and
have long waiting lists. These lots are served by Cambus.
2. Construction of new lots would he necessary to accommodate additional cars.
3. Additional buses and drivers would be necessary to shuttle people between the
lots and their destinations at peak hours.
-3-
•
4. May be successful if parking downtown and at other destinations is scarce
enough and costs enough to discourage driving in.
S. Would reduce the amount of traffic on U.S. 6 and Highway 218, and on other
downtown streets.
6. May require some additional personal time and inconvenience.
7. Wodld require locations for lots at intersections of or adjoining major streets
in order to intercept the drivers.
8. These lots would have to be buffered to minimize impact on surrounding land use.
Economic:
1. Could reduce the need for new and expanded arterial street systems.
2. Would reduce parking system revenues as fewer cars would be utilizing city -
owned parking facilities and metered spaces.
3. Could reduce transit system revenues if the shuttle huses utilized were not
city buses.
Environmental:
1. Commuter parking lots will reduce the automobile traffic and therefore air and
noise pollution throughout the city.
2. Shuttle buses will use less fuel than individual cars.
3. Fewer parking spaces will be required thus reducing the visual pollution of
parked cars and possibly leaving more open space and vegetation.
Legal:
1. Constitutional: Running shuttle buses between existing commuter parking lots
and major dostination,points would appear to raise no constitutional issue.
0£ course just compensation would have to be paid for land that is taken from
private,liands for establishment of new commuter parking lots.
2. Code: Establishment of such commuter parking lots would be a "general corporate
purpose", and thus a special city election would be necessary before the council
could institute proceedings for the issuance of bonds.3
3. Case Law: Indeterminate.
SUMMARY TABLE
Land Use Economic Environmental legal
and Social
Alternative 1 + + +
Alternative 2 + +/- +
Alternative 3 +/- +/-
Y
FOOTNOTES
Legal
1. McQuillion, Municipal_ Corporations, Section 44.40, page 108.
2. Iowa Code Section 364.3 limits the home -rule power of cities and provides
"The following are limitations upon the power of a city: 1. A city council
shall exercise a power only by the passage of a motion, a resolution, and
amendment, or an ordinance..."
3. Iowa Code Sections 384.24 (2)(a), 384.24 (4)(a) and 384.26.
a
0 0
ISSUE RR: 1Vhat should be the City policy regarding bikeways?
Bikeways can be used for two principle purposes - transportation and recreation.
The general survey clearly indicated an interest in increasing the City's commit-
ment to bikeways.
Alternative 1: The City should establish a continuous bikeway system.
This alternative assumes that a continuous bikeway means that significant improve-
ments need to be made in the existing bikeway system. Discontinuities exist at
major intersections and the change between bike path, bike lane and bike routeare
presently not obvious. Also, a bicycle Riverside Drive and Iowa River crossing are
needed.
Land Use and Social:
1. Improving the bikeway system will make bicycling a more viable transportation
alternative.
2. Improvements in the system will increase bicycle safety and will reduce bicycler -
auto conflicts.
3. Will particularly benefit bicyclers, but benefits drivers, too, by removing
bicyclers from the streets.
Economic:
1. Provides an alternative mode of transportation for both work and leisure trips.
2. Would require an expenditure for signage, line painting, etc.
3. Increases the maintenance burden and therefore increases operating costs.
Environmental:
1. A continuous bikeway system will encourage bicycle use as an alternate mode of
transportation. Increased bicycle use will result in decreased automobile use
with reduction in fossil fuel use and noise and air pollution.
2. Bicycles are noiseless, nonpolluting, and confer health benefits on the rider,
all of which are psychologically beneficial also.
3. If a bikeway system is direct, safe, and continuous, its extensive use may mean
that additional construction or widening of some streets will not be necessary,
thus reducing the adverse effects of such construction and use.
4. A continuous bikeway system will reduce automobile -bicycle conflicts on streets,
making travel safer and pleasanter for bicyclists and automobile drivers.
Legal:
1. Constitutional: Appears to raise no constitutional issue. Of course, just
compensation must be paid if private property is taken for public use as a
bicycle path. However, some property owners may be willing to grant an case-
ment over their property for such a purpose, and existing public right-of-ways
can be more extensively used as bikeways,
2. Code: The state conservation commission is authorized to co-operate with
county conservation boards, boards of supervisors, city councils, or any pri-
vate organizations interested in the establishment of bikeways, and may consult
with such groups in the planning of appropriate bikeway routes and related
activities.l
• ' 0
3. Case Law: Indeterminate.
Alternative 2: The City should establish bikeways separated from walkways and auto-
mobile traffic only in restricted areas where traffic is heavy.
This alternative is similar to the alternative above but the emphasis is placed on
areas of traffic modal conflict.
Same as Alternative 1.
Environmental:
A non -continuous bikeway system does not encourage bicycle use as much as a contin-
uous system. There are more conflicts between cars and bicycles, bicyclists feel
less safe and do not know where they are supposed to ride.
Alternative 3: The City should establish a bikeway system for use by children
and riders unwilling to compete with automobile traffic.
This alternative assumes that the primary function of the bikeways system should be
for the non-aggressive bikerider. Bikeway improvements would be on local streets
and bikers in other streets would be expected to behave as vehicles.
Land Use and Social:
1. May make leisure bicycler riding more pleasurable.
2. Will reduce the chance of auto -bicycler conflict on local streets so will
increase safety.
Economic:
No significant economic impact.
Environmental:
Same as Alternative 1, since it is the non-aggressive rider who will be encouraged
to use a bicycle if a bikeway system exists. (Aggressive bicyclists usually prefer
to use the street and compete with automobile traffic, since they ride at the same
speed as automobiles tinder city conditions.)
Legal:
Analysis of Alternative 1 applies.
Alternative 4: Bikeways should be separated from walkways.
This alternative assumes that bikeways and walkways are incompatible and that bike-
ways and walkways shouldn't share the same pavement unless it is sufficiently wide.
Land Use and Social:
1. Would allow bicyclers to travel at a faster pace.
2. Would eliminate bicycler -pedestrian conflicts.
3. Would require additional right-of-way and construction.
E
Economic:
-3-
1. Would require the construction or marking of bikeways where separations from
walkways do not now exist.
Environmental:
Comment: Ideally the separation of walkways and bikeways will encourage bicycle
(and pedestrian) traffic and reduce automobile use. Environmentally this would
be most beneficial and #1,2,3,4 for alternative 1 apply.
Where pedestrian traffic is heavy bicycles are not compatible, but in areas
where both bicycle and pedestrian use is light the path can be shared if both types
of users are aware of each other. .Audible signals given by bicyclists make both
parties feel safer:
Legal:
Analysis of Alternative 1 applies.
SUHNIARY TABLE
Land Use Economic Environmental Legal
and Social
Alternative 1 + */ + +
Alternative 2 + +/- +/- +
Alternative 3 + 0 + +
Alternative 4 +/- +/- + +
FOOTNOTES
Legal.
1. Chapter 308 A Recreational Bikeways, Section 308A,1
0
ISSUE SS: What measures can the city follow to protect residents and their property
from flood waters along Ralston Creek?
This issue is being dealt with in the Ralston Creek study.
ISSUE TT: How can the city encourage tree plantings?
This issue was decided to be dealt with as follows:
1. existing tree ordinance with alterations (currently pending, for page 2),
2, work with Project Green and similar organizations, and
3. explore incentives to encourage tree planting for those areas not covered by
the tree ordinance.
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?
It has been recommended that the North Waste hater treatment plant site be selected.
ISSUE UU: How can the city preserve prime agricultural land?
To the east, south and west Iowa City is bordered by prime agricultural land. Pre-
servation of this unique resource is important not only from the stand point of the
local economy, but also from the stand point of reducing the national loss of prime
agricultural land.
Alternative 1: Zone land with high crop suitability.
This alternative assumes annexation of agricultural land at the urban fringe and
regulAtion of land use to agricultural use only as long as alternative development
sites exist within the City.
Land Use and Social:
1. May push development outside the city's limits and annexed areas. This will result
in consumption of prime agricultural land there and will result in other impact -
associated with leap -frogging.
2. Pressures for development will be continual, so land values will increase.
3. Somewhat restricts choice of development and home -ownership opportunities.
4. Will protect agricultural land as zoning does not change.
Economic:
1. Encourages more compact development within the city which provides the City with
the opportunity to more efficiently and cost-effectively provide essential services.
2. Artficially restricts the supply of land available for development which tends
to keep prices higher than what would normally be the case.
3. Places the owners of land which is determined to be developable at a unfair com-
petitive advantage since alternative development sites (i.e., prime agricultural
land) are restricted.
4. Could force development beyond the jurisdiction of the city or to other com-
munities where development is less restrictive.
Environmental:
1. This will preserve prime agricultural land.
2. It will ensure that other suitable land is developed before agricultural land
is used as a last resort.
3. Some wild life habitats will be maintained close to the urban edge of the city
due to an expanded ecotone.
4. Crop cycles which are part of the local economy and material cycles of the area
will be maintained.
Legal:
1. Constititutional: As long as this land was properly annexed, the City would be
acting within the scope of the authority delegated to it under Iowa Code Chap-
ter 414, Municipal Zoning in regulating land use to agricultural use only,
2. Code: Under Iowa Code Section 414.2 the City Council may regulate and restrict
the erection, construction, reconstruction, alteration, repair, or use of
buildings, structures or land within the zoning districts it creates.
3. Case Law: So long as a municipality confines enactment under Sections 414.2
and 414.3, as to use of land within the municipality by the.owner thereof,
within proper limits of police power, they do not violate property rights of
• 2 •
individuals; but requirements must be rearnable and for protection of property,
public morals, or welfare of inhabitants.
Alternative 2: Do not extend trafficways and utilities to prime agricultural land
as long as alternative development sites exist.
This alternative assumes annexation of agricultural land at the urban fringe and
control of development by restricting street development and utilization.
Land Use and Social:
#1,2,3 in Alternative 1 apply.
4. This policy may interfere with providing a by-pass or truck route around the
city (if such a trafficway is desired).
5. The possibility of other trafficways being constructed (i.e., 518) will prevent
this policy from being entirely effective.
6. Lagoons and septic systems cansubstitute for city sewer service if other factors
permit.
7. To the extent that these areas are not provided with utilities and trafficways,
this will retard development.
Economic:
1. Encourages compact development within the city and provides the opportunity for
more efficient and cost-effective provision of essential city services.
2. Could force some development out into the county where existing roads and utilities
are sufficient to support it.
Environmental:
#1,2,3 and 4 for Alternative 1 apply. Control which ensures maintenance of the
prime agricultural land will be even more effective since utilities or traffic -
ways would have to be put in by the developer.
Legal:
A limitation exists, because if the property owners object to annexation, the
City must make an affirmative showing that it is capable of extending substantial
municipal services and benefits not therefore enjoyed by the area and that the
annexation would not result merely in increased tax revenue.
The court considers each of the present services enjoyed by the arca sought to
be annexed and the level of services it will have after annexation. It considers
the capability of the City to extend street maintenance, sanitation services, water,
sewers, gas and electric services. Other municipal services considered are use of
the park system, a supervised recreation system, city planning department, municipal
library facilities, a municipal airport, fire and police protection, full time city
engineering services, and a zoning ordinance.2
Alternative 3: Joint city -county planning.
This alternative assumes that the City and the County can jointly agree to preserve
prime agricultural lands. Through their joint review procedures these areas would
be protected.
-3 -
Land Use and Social:
1. Whereas the City does not have jurisdiction over a large enough area to control
this problem, the City and County together can preserve the surrounding agri-
cultural land through zoning and rural subdivision requirements.
2. Joint review procedures will make rezoning more difficult and subdivision review
more critical, so change in use will be less likely.
Economic:
1. Encourages compact development within the existing urbanized area and provides
the opportunity for more efficient and cost-effective provision of essential
city services.
2. Artificially restricts the supply of developed land and consequently keeps prices
at an artificially high level.
3. Would help control the proliferation of rural subdivisions as non -city develop-
ment alternatives become less feasible.
Environmental:
#1,2,3 F, 4 for Alternative 1 apply, if there is an effective agreement to preserve
prime agricultural land.
Legal:
1. Constitutional: Appears to raise no constitutional issue.
2. Code: Iowa Code Chapter 473 provides for a Metropolitan or Regional planning
Commission. Under this chapter the governing bodies of a county and its major
city or cities may co-operate in the creation of a joint planning commission
which shall have the power and duty to make comprehensive studies and plans for
the development of the area it serves.
However, whether such a commission is necessary to preserve prime agri-
cultural land is open to debate. The City and County may be able to jointly
agree to preserve prime agricultural lands and do so without such a joint plan-
ning commission.
3. Case Law: Indeterminate.
0 -4- •
SUMMARY TABLE
Land Use Economic Environmental Legal
and Social
Alternative 1 +/- +/- + +
Alternative 2 +/_ +/_ + +
Alternative 3 + + + +
FOOTNOTES
Legal
1. Rehmann v. City of Des Moines, 200 Iowa 286, 204 NW 267, 40 A.L.R. 922 (1925).
2. Town of LeClaire v. Ahrens, 195 NIP 2d 719 (1972).
3. Town of Grimes v. Adel Clay Products Co., 126 NJV. 2d 270 (1964).
w
ISSUE 1N: How can the City assist in providing a quality environment along
the Iowa River.
Protection of the Iowa River, Iowa City's most dominant natural feature has
been identified as the prime objective of the Riverfront Coimnission. The
Riverfront Commission study of the Iowa River contains many recommendations
for the enhancement and protection of the river corridor, but some decision
on what course of action the City should take is still lacking.
Alternative 1: Adopt and implement recommendations as proposed by the
Riverfront Commission.
This alternative assumes that the recommendations in the RC study are for the
most part in the City's best interest and should be adopted as part of the
comprehensive plan.
Land Use and Social:
1. Will provide extensive walkways and bikeways particularly for leisure,
which may decrease the number who drive for leisure.
2. Will require the acquisition and development of the walkway/bikeway system,
and of several parks along the river.
3. Will have a positive impact on values of property adjoining or nearby parks.
4. New development will focus on the riverbanks and the parks.
5. The bikeway/walkway may be considered undesirable by home -owners and
potential home -buyers. Buffering may help, but this could still detract
from the value and privacy of the property.
6. The suggested locations for parks, walkways, etc. may not be entirely
compatible with the City's land use scheme which will be developed as
part of the Comprehensive Plan.
7. Where possible, acquisition of the land should occur prior to development
(in the northern and southern corridors and in the peninsula).
8. Will require cooperation with Coralville to be entirely effective.
9. May disadvantage current owners of the land in question, but would be a
benefit to the city as a whole.
Economic:
1. Would require extensive public acquisition which could be financed
partially out of various federal sources such as BOR and CDBG but would
require general fund financing to fully implement.'
2. Would place additional tax producing land in public ownership and reduce
city tax revenues.
3. Would increase extensively, the maintenance burden on the parks and
recreation department.
4. Would require, in addition to land Acquisition, major capital expenditures
to develop and equip the suggested recreation areas as well as providing
access to them.
Environmental:
1. This will help maintain the scarce habitats and vegetation of the
river corridor.
2. Pollution of the river and river banks will be reduced,
3. Development along the river will be compatible with its importance as a
dominant natural feature.
4. The river corridor will be accessible for recreational activities.
S. A River Corridor Management Ordinance (or overlay :one) will ensure that
non -conforming uses along the river can gradually be eliminated.
6. Views from and of the river will be preserved.
7. Erosion along river banks will be controlled and their stability maintained.
R. The whole river corridor will serve as a natural corridor with a large edge
effect through the whole city reducing air and noise pollution and providing
attractive open space for relaxation and recreation.
Legal:
This analysis focuses on the Management Implementation Plan of the Iowa River
Corridor Study, and particularly on the acquisition of land as explained in
that document.
1. Constitutional: Requiring land owners along the river to dedicate land
or grant an easement for open space and public use would constitute a taking
for which compensation would have to be paid.l Therefore acquisition of
land for trails and open space will probably have to be through purchase,
other voluntary means or as a last resort, condemnation.
Regulation of development and construction in the river corridor to en-
hance aesthetic characteristics at some point Imay constitute a taking
for which compensation would have to be paid. -
2. Code: The Iowa Code neither specifically authorizes nor forbids requiring
dedication of land for open space, and it is an open question whether such
a requirement would be upheld.
Under Iowa Code Section 111 D.1, any city or agency thereof may acquire by
purchase, gift, contract, or other voluntary means, but not by eminent
domain, conservation easements in land to preserve scenic beauty, wildlife
habitat, riparian lands, wet lands, or forests, promote outdoor recreation,
or otherwise conserve for the benefit of the public the natural beauty,
natural resources, and public recreation facilities of the state.
3. Case Law: States are split on whether dedications of land can be required,
and Iowa has no appellate cases for precedent though mandatory dedication
may be upheld as a condition to subdivision plat approval under certain
limited circumstances, requiring dedication for open space on the river
corridor would confer a benefit upon the public for which the private owner
would have to be compensated.3
Alternative 2: Adopt and implement selected proposals of the Riverfront Comm-
ission.
This alternative assumes the recommendations of the RC study are basically
accurate bvt they need to be balanced by other land use criteria. This assumes
that the proposals would be selectively incorporated into the Comprehensive
Plan.
Land Use and Social:
1. Same as alternative 1, except this alternative provides for alteration
according to the comprehensive plan.
Economic:
1. Same as for alternative 1.
Environmental: • •
Depending on which proposals are selected, various items 1 - 8 of
alternative 1 would apply.
Legal:
Analysis of alternative 1 applies.
Alternative 3: Adopt proposals as part of the land use plan, encourage im-
plementation by private funding.
This alternative assumes the RC study recommendations would be adopted as part
of the Comprehensive Plan, but be implemented primarily by private funds.
Land Use and Social:
Same as alternative 1 if the same land could be purchased with private
funds.
Economic:
1. Would eliminate the burden on the general fund of financing the proposed
Riverfront land.
2. Would probably remove the land from the tax roles and place it in the
ownership of a non-taxable organization, or by donation in the ownership
of the city.
3. If placed in city ownership, the city would assume the burden of maintenance.
Legal:
1. Private individuals lack the power of eminent domain and this would force
very difficult problems in acquiring all the land required for implemen-
tation of the River Corridor Study. However, implementation by use of
private funds would have no adverse legal impact.
SMMARY TABLE
Land Use Economic Environmental Legal
and Social
Alternative 1 +/- +/- + +/-
Alternative 2 + +/_ +
Alternative 3 +/- + + +
11
FOOTNOTES
0
Legal
1. Article I, Section 18 if the Lowa Constitution provides, "Eminent Domain".
Private property shall not be taken for public use without just compensation
first being made, or secured to be made to the owner therof, as soon as
the damages shall be assessed by a jury, who shall not take into consideration
any advantages that may result to said owner on account of the improvement
y of
for which it is taken. In Phelpsy
Board
efcourt heldrthat as of htakingtdoes
Muscatine, 211 N.W. 2d 274 (Iowa 1973),
not necessarily mean the appropriation of the fee but is anything which
substantially deprives one of the use and enjoyment of his property or
a portion thereof.
2. In Pennsylvania Coal. Co. v. Mahn, 260 U.S. 393, 415-416, 43 S. Ct 158
(1922) the U.S. Supreme Court stated, "There is no set formula to determine
where regulation ends and taking begins ... the general rule is that while
property may be regulated to a certain extent, if a regulation goes too far
it will be recognized as a taking'."
3. Dunham, A Legal and Economic Basis for City Planning, 58 Columbia L Rev
650, 669 (1958).
0 0
ISSUE WW: How can the city provide for the protection of natural areas?
Protection of natural areas, separate from their use as recreation areas is
identified in the Vegetation Guide as an ecologically sound strategy for
Iowa City to implement. The mechanism for doing this is in question.
Alternative 1: Explore the establishment of land trust and tax incentive systems.
This alternative assumes the City could facilitate the establishment of a local
land trust or implement tax incentives to aid in the private protection of
these areas.
Land Use and Social:
1. Would protect natural areas to the extent that property owners are willing
to participate.
2. Would provide freedom of choice for the property owners.
Economic:
1. Reduces property tax revenues for the city.
2. Permits preservation of natural areas without major expenditures by
the city for land acquisition.
3. Relieves the pressure for converting natural areas to other types of
land use, and also reduces the supply of available developable land.
4. Unless deeded in perpetuity to the land trust, this system could provide
incentives and opportunities for individuals to avoid property taxes at
least temporarily.
Environmental:
1. This will help preserve scarce habitats and environmentally sensitive areas.
2. It will probably preserve some open space which would otherwise be
developed, and thus provide added "edge" between urban development and
vegetation.
3; It will help maintain some of the natural ecosystems in the area.
4. Preservation of natural areas will reduce air, noise and temperature
pollution and add aesthetic value to the area.
Legal:
1. The establishment of local land trusts by private individuals for the
protection of natural areas would have no adverse legal impacts for
the city. however, it is doubtful that the city could implement tax
incentives for the protection of natural areas under current Iowa law,
as the city may not assess natural areas at other than their fair and
reasonable market value.l
0
Alternative 2: Acquisition of areas worthy of preservation.
This alternative assumes the city would acquire fee service title to areas
worthy of protection and hold them as conservation areas.
Land Use and Social:
1. Would protect natural areas as long as the City feels they are worthy
of protection.
2. Would be a disadvantage to property owners not interested in selling
the natural areas, although they would be compensated.
Economic:
1. Would require major capital expenditures for land acquisition.
2. Would place additional land in public ownership and thereby reduce
the property tax revenue received by the city.
Environmental:
91 - 4 for Alternative 1 apply.
Legal:
1. Acquisition of fee simple title to land to protect it would appear to
raise no adverse legal impact. Of course, should the power of eminent
domain be exercised, just compensation must be paid.
Alternative 3: Acquisition of easements.
This alternative assumes the City would obtain some property rights to limit
the utilization of private land.
Land Use and Social:
Same as Alternative 1.
Economic:
1. Would probably require as large an expenditure for the easement as for
an outright fee simple purchase since the property owner is effectively
excluded from any other use of the land.
2. For lands which do not have development potential or are not suitable
for agricultural purpose this alternative would provide the city with the
opportunity to preserve natual areas at a comparatively low cost.
-3 -
Environmental:
N1 - 4 for Alternative 1 will apply to a more limited extent.
Legal:
1. If the city is able to negotiate the granting of easements by private
properpy owners for open space and public use, no adverse legal impacts
are likely. See Issue MV, Alternative l,code 2. However, as pointed
out in Issue IN, Alternative 1, requiring land owners to grant such an
easement would constitute a taking for which compensation would have to
be paid. See Issue %11, Alternative 1, Footnote 1.)
Alternative 4:
This alternative assumes the City would establish a TDR system which would
require protection of natural areas and encourage title transfer through
bonuses.
Land Use and Social:
1. Depending on the bonuses provided, the transfer will have effects on
the type, density, and/or arrangement of land use elsewhere.
2. Will encourage property owners to donate these natural areas to the City.
Economic:
1. Permits natural areas acquisition without major public investment.
2. The property valuation and tax return would not be significantly affected
since the development value of the donated property would be transferred
to the remaining property held by the private landowner.
3. Since density is increased on another piece of land the effective supply of
land remains the same.
Environmental:
N1 - 4 for Alternative 1 will apply to a more limited extent.
Leal:
1. A memorandum of October 1, 1976 from Assistant City Attorney Angela Ryan
on Development Rights Transfers, concludes that in Iowa, state enabling
legislation would probably be necessary before a municipality could enact
a developmental rights transfer plan.2 Such a system would raise a host of
legal questions (equal protection of the law, whether such a system
results in a taking, and whether development rights can constitute just
compensation or whether compensation must be in money). Stich a system
would undoubtedly be challenged in the courts, and would have to be
defended without specific enabling legislation which could hopefully
clarify that there is indeed statutory authority for the local ordinance,
that the ordinance is a police power rather than a taxing measure, and
that the ordinance is within the scope of the city's police power.
Land Use
and Social
-4 -
SM-1ARY TABLE
Economic
Environmental
AIternative I
+/- +/_ +
Alternative 2
+/- - +
Alternative 3
+/- +/_ +
Alternative 4
+/_ + +
FOOTNOTES
Legal
Legal
1. The city assessor must cause to be assessed, in accordance with Iowa Code,
section 441.21, all the property, personal and real, in his city, except
such as is exempt from taxation, or the assessment of which is otherwise
provided for by law. Iowa Code Section 441.17 (2). Section 441.21 requires
valuation at the fair and reasonable market value, with the provision that
the fair and reasonable market value of agricultural property shall be based
only on its current use and not on its potential value for other uses.
Thus the City may not assess natural areas at other than its fair and
reasonable market value.
2. Refer to attached Memo from Angela Ryan, Asst. City Attorney
0, City of Iowa Cit
DATE: October 1, 1976
TO: Rick Geshwiler, Senior Planner
FROM: Angela Ryan, Asst. City Attorney
RE: Development Rights Transfers
one of the techniques considered for the River Corridor is
the use of developTent right transfers. This is the method of land
control by which the City would prepare ecaprehensive plans that
would designate areas to be developed as residential and commercial
and areas to be kept as open space or rural agricultural fringe.
The City would next determine the number of "development rights"
necessary for desired commercial or residential construction, basing
the calculation on the number of development rights per unit of
cammercial or residential construction and the total area allotted
for the particular uses. The planning body could thus calculate the
maximum number of cnmercial and residential development rights avail-
able within the planning area. A portion of both types of development
rights would be assigned to every landowner in tYe planning area, even
those in restricted districts. Thus, at the outset, everyone in the
planning area has development rights: the landowner in the restricted
zone has development rights but cannot use them; the landowner in the
development zone has development rights but not enough be permit full
developTent. The plan then contemplates the buying and selling of
developTent rights, either on the open market or through a mechanism
such as a mmodities exchange, stock market, or development rights
bank. The landowner in a development zone can develop his land fully,
but must pay saething for the right; the landowner in a restricted
zone cannot develop but can sell rights and obtain compensation.
Thus, the impact of regulation is sufficiently less than to bring
it within the limits of the police power, and the public acquires
permanent open space at no public cost.
• ��
1. Has the City authority to enact a developmental rights
transfer plan?
Vhat legal challenges may be anticipated?
1i6X*_10 (6AA
1. In Iowa, state enabling legislation would probably be
necessary before a municipality could enact such an ordinance.
• -2-
2. Landowners may allege that DRGs' viola
sions, that it is an unauthorized tax, a violation
and a taking. Since there have been no appellate
cult to predict whether it would be upheld.
DISCUSSION
to state zoning orovi-
of equal protection
cases, it is diffi-
In 1974, four states had introduced bills which would authorize
development right transfers (DRT) and none had yet been enacted. Some
cities have used DRTs without state enabling legislation and based their
authority upoq a state policy to preserve open spaces and historic areas.
Authors who believe that no further enabling legislation is necessary
rely heavily on a municipal ordinance presumption of validity - in my
opinion, too heavily. Specific enabling legislation world show that
there is statutory authority for the local ordinance, that the ordinance
is a police power rather than a taxing measure, and that the ordinance
comports with the requirements of the police power doctrine. An
express statutory declaration that DRP is a police power technique will
be helpful although not conclusive.
Under police po.4er doctrine, the burdened class must be shown to
be the class whose actions have created the evil that the legislation
is intended to remedy and revenues raised frcn the police po..er imposi-
tion must be devoted exclusively to public objectives that motivated
their adoption. The nexus between development and environmental harm
should meet the first requirement especially if its existence appears
as an express legislative finding in the enabling acts preface.
Under the present state enabling legislation, it my be alleged
that cities do not have authority to employ zoning to achieve the broad
environmental goals that transfer programs address. The program's dual
bulk system may violate the provision that "all zoning regulations shall
be uniform for each class and kind of building throughout each district."
This objection could be overcame by modifying applicable land use
legislation.
Owners in transfer districts may insist that a city may fix density
only on the basis of substantive planning criteria - those relating to
adequate light, air, pedestrian access, and similar factors. Transfer
programs regulate density for the additional purpose of creating a
market for development rights. Therefore, it is an improper encroach-
ment upon private property rights. They may contend that raising funds
for environmental betterment lies within the province of the taxing
power rather than the police power.
A problem arises because a DRT combines regulatory and fiscal
elements. If the program is seen as a taxing measure, it must meet
state constitutional and statutory requirements which, depending upon
the type of tax involved, may include uniformity, add valorem imposition,
and tax rate limitations. If it is considered a tax measure, it proba-
bly um't meet these requirements.
-3- •
Proponents analogize DRTs to exactions which have been upheld in
several states. However, the reasonableness of an exaction is usually
based upon the fact that the development which created the need for
more parks or schools will be the beneficiary of these improvements.
In a DRP, there is not this nexus between those who bear the cost and
those who receive the benefit. Typically, the development district is
separated from the conservancy district and the open space will benefit
the whole camunity.
DRTs will also encounter difficulties if they are analogized to
special assessments. Environmental protection does not fall within
the traditional listing of improvements that may be financed under
special assessments. The price of DFUs will not be tied to an increase
in value accruing to transfer districts by virtue of resource protection.
Father, it will be made by the market on the basis of valub increase
attributable to the extra density.
Developers and landowners within transfer districts may claim that
they are denied equal protection because density permitted as a right
outside of the district will be more liberal than that within the dis-
trict, and that the price builders pay for developrent rights which
could otherwise be available by right will ultimately be passed on to
the purchasers of their projects. Even if resource protection costs
are shifted to customers, it hardly follows that the courts will find
transfer programs exclusionary. Developent in many transfer districts
will be primarily industrial or camarcial in nature, thus obviate any
objection altogether. The cost of horsing in districts likely to
became residential will often fall within the middle incam and luxury
range, a circumstance that is not constitutionally troublesome if the
jurisdiction has made adequate provision for law cost housing elsewhere
within its boundaries.
Iandoeners may allege a taking because their return on property
within the transfer district will be reduced. Whether the amount will
be large enough to be considered a taking will depend upon the value set
for development rights. The City must set the cost of developmnt
rights or the residual densities within transfer districts at levels
that generate the revenues needed for resource protection without
discouraging new construction in the transfer districts. If the develop-
ment rights are too expensive or developers don't buy them for some
other reason, a landowner in a conservancy district will find himself
with certificates he can't sell and land which he can't develop but
still must pay taxes on.
Principles of "just coap nsation" which apply in eminent domain
cases require that oonpensation must be in money. Statutes providing
for payment by something other than money, e.g. other land, have been
held invalid. Compensation must be unconditional and based upon the
value of property at the time of taking without regard to subsequent
inflationary effects upon the property's value. DFUs could violate these
principles by its requiraments that the original compensation is by
certificate rather than money; the value of the certificates relate to
the potential of increased value of the land; compensation is conditional
upon the creation of a market for certificate; the value of the certifi-
cates depends upon the value of the right to develop other land at the
time of the sale of the certificate rather than the value of the right to
develop the owner's land at the time of the taking. However, since the
-a- 0
owner is not deprived of the use and title of his/her property in
an unequivocal and unconditional way, the principles of eminent danain
nay not apply.
The case for developent rights transfer ultimately rests on tno
Propositions; which though independently based are mutually reinforcing:
First, government cosy properly shift to developers and landowners the
cyst of resource protection programs initiated to counteract the environ-
mmntally harmful effects of their land use decisions; and second, govern-
ment may finance these programs by recapturing the increment of the
increase in land values attributable to government actions and community
growth