Jackson Master Plan Draft

8/16/2019 Jackson Master Plan Draft

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RENEW JACKSONA MASTER PLAN FOR MUNICIPAL SPECIAL SALES TAX-FUNDED

INFRASTRUCTURE IMPROVEMENTS

Established and Adopted by theMunicipal Special Sales Tax Commission

As developed by theCity of Jackson

Department of Public Works

May 2016


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FROM THE MAYORGreetings,

On January 14, 2014, citizens from all over our great city convincingly passedlegislation to approve a 1% sales tax increase to address our infrastructureneeds. Infrastructure stability is a prime concern across our country. The lack ofinvestment in infrastructure improvements has led to a growing gap between thefunding that is needed and what is available to budget. Our infrastructureconcerns are no different from other cities. Yet, what we’ve done here in Jacksonis take a progressive approach to address the issues that have plagued our cityfor decades. This approach has put us in the front seat of a nationalconversation; but reversing a trend of deferred maintenance and curing theissues from years of limited investment doesn’t happen overnight.

In April of 2014, this administration took on the challenge to bring about positivechange in Jackson and to provide the best possible quality of life for all its constituents.We see the national trend towardsustainable infrastructure management as anopportunity to solidify Jackson as a leader in innovation and planning throughout ourgreat nation. After assuming office, this administration immediately rolled out initiatives – such as our infrastructure listening tours - to involve the community in the process ofplanning for our infrastructure improvements. Using feedback from those listeningtours, a public comment period and input from the commission set in place to monitorexpenditures of the 1% sales tax funds; our own Department of Public Works, being thesubject matter experts, have developedRenew Jackson; a Master Plan for the

municipal special sales tax funded infrastructure improvement program forJackson, Mississippi: The Bold New City.

The vision of our city can only be accomplished through our collective genius and collective efforts. Thisadministration submits to you that at every level, in every department, in all tasks – we will be committed to ourcitizens, innovative in our thoughts, seamlessly connected in our processes, champions of our vibrant city, diligent our efforts to assure the progression of our people, and a prosperous city with leaders that exemplify the level ofexcellence that Jackson deserves. As we push forward to implement Renew Jackson, we welcome continuedfeedback and ideas to grow the capital city of Mississippi. I thank you for the confidence that you have placed in mto lead this city toward the manifestation of its potential. We are Jackson!

All the best,

Tony T. YarberMayor of Jackson

Delivering the Vision: A Bold New City

Transforming the City of Jackson tobecome a destination city that is aleader in innovation, education,infrastructure stability; cultivating anenvironment that is safer andconducive to entrepreneurialendeavors.


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CITY COUNCIL

PRESIDENT

Melvin Priester, Jr., Ward 2

VICE PRESIDENT

Tyrone Hendrix, Ward 6

COUNCIL MEMBERS

Ashby Foote, Ward 1

Kenneth I. Stokes, Ward 3

De’Keither Stamps, Ward 4

Charles Tillman, Ward 5

Margaret Barrett-Simon, Ward 7


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ACKNOWLEDGEMENTS

CITY OF JACKSONMUNICIPAL SPECIAL SALES TAX COMMISSION

Tony T. Yarber, MayorKishia L. Powell, PEGail Wright LoweryJames “Pete” Perry Michael Boerner

Duane O'Neil, President/CEODr. Beverly Wade HoganDr. Carolyn W. MeyersGodwin DafeTed Duckworth

MASTER PLAN DEVELOPMENT

CITY OF JACKSON DEPARTMENT OF PUBLIC WORKS

Kishia L. Powell, Director Andrada Butler, Deputy DirectorLacey Reddix, IMP ManagerCharles Williams, PhD, PERobert Lee, PE, CFMLeroy Lee

Mary D. CarterTerry WilliamsonWilliam Miley Anthony Harkless, PEJames CaldwellGeorge Ewing

CONSULTANT SUPPORT

Gresham Smith – TIGER VII GrantIMS Engineers – Program Management SupportKipling Jones – Financial Advisor Raftelis/SOL Engineers – Infrastructure Master Plan Development


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TABLE OF CONTENTS

Infrastructure Master Plan……………………………………………………………………………………………...…Tab 1

Executive Summary

Master Plan Development

Infrastructure Systems

Capital Improvement Planning………………………………………………………………...…………………………Tab 2

Appendix A:One Percent Special Sales Tax Legislation……………………………………………...……………....Tab 3

Appendix B: Sales Tax Funded CIP Annual Budget Summary………………………………………………………..Tab 4

Appendix C: Infrastructure Systems Data………………….…………….……………………………………………....Tab 5

Table 1 – Streets

Table 2 – Drainage

Table 3 – Bridges

Table 4 – Water Lines

Appendix D: Operation Orange Cone…………………………………………………………………………….…..…..Tab 6

Appendix E: Program Year 1 Projects…………………………………………………………………………………...Tab 7

Appendix F: Program Year 2 Projects……………………………….……………………………………………....…..Tab 8

Appendix G:Public Comments………………………………………………………………………..………..………...Tab 9


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INFRASTRUCTURE MASTER PLANEXECUTIVE SUMMARY

Over the last several years the City of Jackson has spenthundreds of thousands of dollars on street resurfacing only tohave shifting soils and an escalating number of utility cutsreturn our roadways to an obstacle course of potholes. StateStreet, a major gateway into our city, was resurfaced in 2010;however, 26 utility cuts has degraded the condition of theroadway since. The City’s failing water system loses anestimated 40% of treated water through leaking pipes. Thecorresponding loss of reliability has sent some of our largestusers to private wells resulting in a major loss of revenue that

would otherwise aid in resolving the water loss problem.

In March of 2013, the City received a federally mandatedwastewater consent decree as a result of hundreds ofsanitary sewer overflows (SSOs) and prohibited bypassesfrom the wastewater treatment plants. Severe drainage andflooding issues have had significant impacts on public andprivate property. Many of the city’s bridges are structurallydeficient; the worst case, a bridge with a rating of 9 on a 100-point scale. All of the above are emblematic of the need foran infrastructure overhaul toRENEW JACKSON.

While the continued deterioration of infrastructure in thecapital city is frustrating and costly to citizens and businessesalike, this is but a microcosm of a national trend. A trend thathas grown out of deferred maintenance and a severeshortage of funding.

Like a growing number of municipalities across the country,the City’s response to this issue was a 1% sales taxspecifically dedicated to infrastructure funding.

BUY JACKSON: THE MUNICIPAL SPECIALSALES TAX

In 2014, the citizens of Jackson voted overwhelmingly tosupport passage of a1% sales tax for infrastructureimprovements. The sales tax applies to goods and serviceswith the exception of groceries, restaurant food and

National and State Perspective:The City of Jackson is not alone

Public infrastructure assets are in significantneed of repairs and upgrades just to maintaincurrent service levels but there is a severeshortage of capital

ASCE estimated a needed infrastructureinvestment of $3.6 trillion dollars in theU.S. by 2020EPA estimated the 20-year funding gapfor water and wastewater infrastructureimprovements as $534 billionFHWA estimated a need of $105.6 billionannually between 2007 and 2026 just tosustain current service levels According to the State of Mississippi’s2012 infrastructure report card, 2,274 ofthe State’s 17,044 bridges arestructurally deficientThe State of Mississippi has a combineddrinking water and wastewater need of$5.1 billion over 20 years to improveexisting infrastructure

STATE OF OURINFRASTRUCTURE


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beverages, prescription drugs, hotel/motel rooms, large equipment purchases, and subscription television andinternet services. The sales tax is collected and accounted for separate from other funds by the MississippiDepartment of Revenue and paid to the City of Jackson. The City maintains the sales tax revenue in a specialcontingency fund until the funds are encumbered for budgeted projects. Based on sales tax revenue projections, th1% sales tax is expected to generate $13M to $15M annually. The following table shows the sales tax generated

since April 2014.

Table 1. Municipal Special Sales Tax Revenue

Month 1% Infrastructure Sales Tax2014 2015 2016

January $1,161,714.36 $1,104,239.29February $1,399,264.52 $1,344,590.72March $1,048,261.72 $1,018,120.33 April $6,223.68 $1,153,801.17 $1,190,878.37May $1,161,472.16 $1,210,334.48 $1,425,034.00June $1,166,418.76 $1,163,783.03

July $1,125,591.09 $1,276,732.18 August $1,066,070.38 $1,221,542.66September $1,118,181.12 $1,170,913.42October $1,147,222.67 $1,133,357.60November $1,162,734.27 $1,185,893.25December $1,191,601.54 $1,184,640.39

Total $29,538,617.16

Compared to the needed $1.5B identified in needed infrastructure investment, and the cost of infrastructureimprovement projects, the sales tax alone will not address the problem. Therefore, the City has strategized toleverage the sales tax in order to fund projects and maximize implementation to stabilize and ultimately improveinfrastructure.

INFRASTRUCTURE IMPROVEMENT SPENDING AND CURRENT NEED

The City of Jackson has not had a formal capital improvement program in over ten years; however, capital projectshave been completed primarily using funding that is reserved from operating and maintenance expenses and/orgrants and loans. In recent years, capital expenditures have increased, largely due to an effort to utilize funds madeavailable through grants and bond proceeds as well as required expenditures for consent decree compliance. Thefollowing figure conveys the capital expenditures from 2011 through 2015.


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Figure 1. Total of Infrastructure Expenditures FY11-15

FY 13 -15 Water and sewer expenditures include Water Infrastructure Improvement Program costs for meterexchange program, water plant improvements and sewerline replacement projects as well as costs of consent decreprogram expenditures, leaving very little to address infrastructure in the public right of way.

The limited investment in recent years underscores the reasons for the sharp decline in infrastructure stability in theCity. Based upon the most recent estimates thetotal estimated need for infrastructure spending in Jacksonbetween now and 2031 exceeds $1.5 billion. Reversing the trend has required the City to develop strategies tostabilize, while at the same time establish a plan for long-term sustainable improvements that attract other sources funding.

FY11 FY12 FY13 FY14 FY15Sewer $2,440,280.96 $4,280,356.90 $12,168,662.61 $17,591,646.66 $21,339,653.85Water $2,478,157.30 $8,975,804.00 $10,764,441.73 $3,278,735.28 $6,511,982.10Drainage $870,900.08 $289,752.92 $731,123.42 $844,618.27 $1,645,043.00

Bridges $308,030.84 $40,000.00 $688,527.89 $265,879.96 $1,144,966.34Roads $4,136,722.15 $5,601,979.07 $3,104,656.60 $11,953,839.51 $6,980,191.83

$-

$5,000,000.00

$10,000,000.00

$15,000,000.00

$20,000,000.00

$25,000,000.00

$30,000,000.00

$35,000,000.00

$40,000,000.00

INFRASTRUCTURE INVESTMENTS FY11-15


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THE MUNICIPAL SPECIAL SALES TAX LEGISLATION

Section § 27-65-241 of the Mississippi Annotated Code lays out the requirements for use of the municipal specialsales tax as follows:

Code Section RequirementsRevenue Collection§ 27-65-241 (4) The revenue collected pursuant to the tax levy imposed under this section may be

expended to pay the cost of road and street repair, reconstruction and resurfacingprojects based on traffic patterns, need and usage, and to pay the costs of water, sewerand drainage projects in accordance with a master plan adopted by the commissionestablished pursuant to subsection (7).

Segregating Sales Tax Funds§ 27-65-241 (5)(b) The proceeds of the special sales tax shall be placed into a special municipal fund apart

from the municipal general fund and any other funds of the municipality, and shall be

expended by the municipality solely for the purposes authorized in subsection (4) of thissection.Establishing a Commission§ 27-65-241(7)(a) Any municipality that levies the special sales tax authorized under this section shall

establish a commission as provided for in this section. Expenditures of revenue from thespecial sales tax authorized by this section shall be in accordance with a master planadopted by the commission pursuant to this subsection.

Establishing a Master Plan and Expenditures of the Revenue§ 27-65-241 (7)(h) The commission shall, with input from the municipality, establish a master plan for road

and street repair, reconstruction and resurfacing projects based on traffic patterns, needand usage, and for water, sewer and drainage projects. Expenditures of the revenue fromthe tax authorized to be imposed pursuant to this sectionshall be made at thediscretion of the governing authoritiesof the municipality if the expenditures complywith the master plan.The commission shall monitor the compliance of themunicipality with the master plan.

Leveraging Sales Tax Funds§ 27-65-241(8) The governing authorities of any municipality that levies the special sales tax

authorized under this section are authorized to incur debt, including bonds, notes orother evidences of indebtedness, for the purpose of paying the costs of road and streetrepair, reconstruction and resurfacing projects based on traffic patterns, need and usage,and to pay the costs of water, sewer and drainage projects in accordance with a masterplan adopted by the commission established pursuant to subsection (7) of this section.Any bonds or notes issued to pay such costs may be secured by the proceeds ofthe special sales tax levied pursuant to this section or may be general obligations ofthe municipality and shall satisfy the requirements for the issuance of debt provided bySections 21-33-313 through 21-33-323.

The legislation for the Municipal Special Sales Tax requires that a master plan be established by the Commission,with input from the Municipality, for road and street repair, reconstruction and resurfacing projects based on traffic


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patterns, need and usage, and for water, sewer and drainage projects. Given the City’s Department of Public Workis most knowledgeable regarding the City’s infrastructure improvement needs and the state of the City’s infrastructassets, the Department, led by the Department Director (a Commission Member), developed the basis for the masteplan while facilitating work sessions with the Commission to establish the required master plan for adoption.Stakeholder input from Council Members and public comments have been incorporated in this master plan as well

Once adopted, the Commission’s role will be to monitor compliance with the master plan as expendituresare made at the discretion of the City of Jackson.

AUTHORIZATION FOR EXPENDITURE OF THE REVENUE

The purpose of this document is to establish a master plan for road and street repair, reconstruction and resurfacingprojects based on traffic patterns, need and usage, and for water, sewer and drainage projects. Expenditures of therevenue from the 1% sales tax will be madeat the discretion of the governing authoritiesof the City of Jacksonfor the following:

Costs associated with improvements of all eligible public infrastructure assets Capital project and equipment expenditures for improvements of all eligible public infrastructure assets an

systems Professional services for project/program implementation Capital expenditures that achieve policy direction, short and long-term objectives as well as investment

priorities for each infrastructure system To address emergency infrastructure failures

CAPITAL IMPROVEMENT PLANNING AND PROJECT DELIVERY

A Capital Improvement Plan is not required by the municipal special sales tax legislation and therefore not subject the approval of the Commission. However, the Department of Public Works understood the need to develop both amaster plan for compliance, as well as a Capital Improvement Plan that identifies specific projects, budgeted costsand funding sources including sales tax funds. The goal of the Department’s capital improvement planning processis to identify and prioritize critical infrastructure needs across the City and to allocate funding to implement thoseprojects througha process that is logical, transparent, and data-driven.

The Department has elected to utilize a five year planning horizon; however, project priorities will be reviewedannually with emergency and urgent needs being assessed on an on-going basis by the City. The costs of road andstreet repair, reconstruction and resurfacing projects based on traffic patterns, need and usage, and the costs ofwater, sewer and drainage projects eligible for use of sales tax funds will be identified in the capital improvementplan; however, expenditures of the revenue from the tax shall be made at the discretion of the governing authoritiesof the City of Jackson as long as the expenditures comply with the master plan.

Specific projects and expenditures will be provided as they are determined by the approved by the governingauthorities of the City to aid the Commission in fullfilling its role of monitoring compliance.


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INFRASTRUCTURE IMPROVEMENT OBJECTIVES

The City of Jackson’s infratructure improvement needs are vast and varied in scope. There are multiple drivers atplay and varying perspectives on how the sales tax funds should be spent.It is quite clear that the City’s roads are ina terrible state of disrepair, and this impacts every neighborhood in every Ward across the City. So it would seem aobvious answer to prioritize the use of the sales tax on paving streets, restoring utility cuts and filling potholes.However, for those that are directly impacted by an overflowing sewer due to a collapse, or an eroding drainagechannel, live in a neighborhood served by a 2-inch water line, on the other side of a collapsed bridge or for thoseamong us that find it difficult to navigate the City due to disabilities, more has to be done with the sales tax funding

Early in the master planning process short and long-term objectives were established to build upon needs identifieby community stakeholders, in comprehensive plans and in accordance withthe City’s economic developmentpriorities.

Table 2. Short-Term and Long-Term Objectives for Infrastructure Improvements

Short-term Objectives Long-Term Objectives Public health and safety Integrated infrastructure improvements to leverage

multiple funding sources and implement “Dig Once”philosophy

Stabilize critical infrastructure Drive econmic development in priority areas Stabilize streets and facilitate movement in/out ofneighborhoods

Draw from a comprehensive capital improvementplan

Address backlog of citizen service requests Partner with neighborhood associations toimplement coordinate improvements

Increase investments around schools and other

critical facilities

Set aside annual funding for Operation Orange

Cone Leverage existing external funds to “de-shelve”sitting projects

Set aside funds for urgent need contracts to addressemergency infrastructure failures

Leverage available funding opportunities (TIGERand Urban Waters)

Invest in preventive maintenanc projects forrads/bridges, drainage, water and sewer

Facilitate immediate economic developmentopportunities

Improve walkability of communities and mobility ofthose with disabilities

The Department of Public Works employed a strategy of moving partially funded projects, near-shovel ready projeand interim maintenance improvements in an effort to jump start infrastructure improvements, maximize

implementation and utilize federal dollars that have been sitting unspent for over five years in an effort to stabilize much of the City as possible. While at the same time, investing in projects requiring design to establish work for thnext construction season. In future years the program must involve a mix of projects that maximize implementatioof projects while increasing design and construction backlog.


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STAKEHOLDER ENGAGEMENT/PUBLIC INFORMATION AND OUTREACH

Stakeholder Engagement is part of any master plan development process. It was important to receive feedback onthe issues that are impacting communities across the City. From discussions in the community, review of servicerequests and feedback from Council Members and Constituent Services; it is evident that the condition of the streetdrainage issues, leaking water pipes and infrastructure failures, such as collapsed bridges, should be prioritized foruse of this funding source.

The specific stakeholder engagement methods used during the initial phase of master plan development included:

• Seven Wards in Seven Days:The Mayor and city council members toured the city with constituents to observecritical infrastructure issues in each ward. Critical issues were then incorporated in the scope of Year 1 capitalimrpvements.

• Listening Tour Stops: Citizens help city officials better understand the impacts of deficient infrastructure withintheir communities.

• Local Contractors Roundtable:Contractors/Consultants and city officials brainstormed ideas on localengagement and what works for capacity building as it relates to sales tax funded infrastructure improvements

• Public Comment Period: In March 2015, a draft of the IMP was posted for public comments to be consideredfor incorporation into the plan.Appendix G includes the list of public comments received and how thosecomments have been addressed.

The culmination of stakeholder input has resulted in a final master plan that addresses the diverse needs of the Citywhere infrastructure improvements are concerned, the first iteration of a comprehensive capital improvementprogram for roads, bridges, drainage, water and sewer systems while important projects have gotten underway.Stakeholder engagement will be a continuous process throughout the life of the program.


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RENEW JACKSONINFRASTRUCTURE MASTER PLAN DEVELOPMENT AND IMPLEMENTATION

AMaster Plan is a general plan for achieving an

objective, a comprehensive plan that provides forguidance or long-term strategy. In this case, theobjective to be achieved is infrastructureimprovements through use of sales tax funding.Given the 20-year life of this sales tax, the basis forthe long-term strategies expressed in this plan issustainability .

Because infrastructure plays a vital role in the growth,stability and vitality of any city, it is important toestablish policy directiopn for infrastrcuture

improvement. This master plan in effect establishesthe following policy directions for infrastructureinvestment in Jackson:

Investment will be fair and equitable acrossthe City to stabilize, improve quality of lifeand grow all parts of the City of Jackson

Priorities for infrastrcuture improvements will beestablished by the City of Jackson including improvements that maintain or achive regulatory complianceand alignment with the City’s Economic Development Priorities

Investments will meet current and future required levels of service The City will maintain a 5-year capital improvement plan to adequately plan funding strategies that leverag

the sales tax revenue as well as implementation strategies to keep work moving Planning infrastructure improvements will account for life-cycle costs (cost of improvement plus furture c

to maintain the infrastructure investment) Infrastructure improvements will not just improve the structural condition of the assets but also achive

compliance where required Infrastructure systems with limited funding and urgent needs will be prioritized for funding

TheInfrastructure Master Plan (IMP) provides an overview of the eligible infrastructure systems, the overall state ofthe assets in those systems as well as sufficient detail to convey how eligible infrastructure improvement needs wil

be identified, prioritized and funded for implementation. Additionally, the plan conveys the capital improvementplanning process and the project delivery process required for implementation of eligible improvements.Development of the IMP started with review of existing plans.

Figure 2. Triple Bottom Line Benefits of a SustainableInfrastructure Improvement Program


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GAP ANALYSIS

Over the years the City has commissioned several master plans or facilities plans for infrastructure improvements;however, many of the project recommendations have not been implemented due to funding constraints and/orchanges in priority, operating conditions and regulatory need. To assist the Commission in establishing a masterplan, DPW performed an initial “gap analysis” review of 34 master plan-type documents dating back to the mid-1960’s to determine improvement needs and to identify what infrastructure pro jects were planned, completed, ordeferred.Through this process, DPW was able to identify and propose critical projects that were close to “shovel-ready” to get the sales tax funded infrastructure improvement program underway for the first program year.

While the “gap analysis” demonstrated a need to gather more data regarding the condition of the City’s infrastructuassets, it was determined that the most recent plans, while not all are comprehensive, provide sufficient detailregarding needed infrastructure improvements to incorporate by reference for eligible infrastructure improvements

Table 3. Eligible Infrastructure Improvements and Existing Planning Documents

Sales Tax Eligible Infrastructure Improvements Existing Plan

Road and Street Repair:This would typically refer tomaintenance and spot repairs including utility cutrestoration and sinkhole repairs; the City would considerbridge maintenance and repairs as part of this category.Work can be performed by properly equipped in-housecrews or outsourced to contractors.

DPW utilizes Pavement Assessment Data from theCentral Mississippi Planning and Development District(CMPDD),the City’s 311 service request system, andin-house street assessments to identify needed roadand street repairs as well as conduct regularinspections.

Reconstruction and Resurfacing Projects Based onTraffic Patterns, Need and Usage:This category refersto roadways with extensive base failures (reconstruction)and those needing an overlay of asphalt (resurfacing).The City would consider bridge replacement as part ofthis category. The City would consider sidewalk ADAcompliance retrofits to be included in this category dueto the requirements of federal regulations. Work can beperformed by properly equipped in-house crews oroutsourced to contractors.

A City specific plan does not exist; however, in 2015,the City provided input for the Jackson Urbanized Area’s Long Range Transportation Plan (CentralMississippi Planning and Development District). TheCity will also submit requests for inclusion in the nextTransportation Improvement Program for the JacksonUrbanized Area, in the Summer of 2016 as a result ofthe FAST Act. The City also implemented apavement management system which provided forcondition assessment ratings.

Water: This category refers to the City’s drinking watertreatment and distribution system.

Water Distribution System Rehabilitation MasterPlan UpdateFebruary 2013

Sewer: This category refers to the City’s sewagecollection and treatment system.

The City plans to utilize the existing enterprise fund asthe primary funding source for sewer improvementprojects as to allow the special sales tax to beprioritized for road, water and drainage improvements.

Drainage:This category refers tothe City’s stormwaterdrainage system.

Capital Reinvestment in Urban DrainageInfrastructureJune 2013


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PRIORITIZATION

Through the planning process, the prioritization of projects happens inthree tiers:

1. By Infrastructure System – assessing structural conditionand criticality to define improvement needs and requiredlevel of service or sufficiency of the infrastructure

2. Project development – developing specific projects to fundand program in the CIP

3. Based upon evaluation criteria – assessing alignment withmultiple criteria to determine where project falls in theplanning horizon (5-year program)

4. Urgent Need – emergencies and high failure risk projectsare funded from an urgent need set aside for on-call work

Prioritization of improvement needs, project development and projectdelivery will utilize an asset management based methodology. The focus of asset management isextending/renewing the service life of public infrastructure at the lowest life-cycle cost. Principles of assetmanagement include:

Identifying the assets – developing acomprehensive inventory of major assets (roads,bridges, drainage system, water and sewersystems

Understanding the state of the assets – achivedby performing condition assessment

Understanding the criticality of assets – achivedby determining how critical the assets are toserving the public, including critical facilities andservices

Risk management – understanding theconsequences and costs of failure and poorservice levels

Life-cycle costing – understanding the cost ofimprovements and long-term maintenance

Once priotritized the projects are budgeted in the CIPbased upon funding availability and required timing. Figure 3. Condition Assessment Data Analyzed


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IMP FUNDING

The municipal speacial sales tax is expected to generate $240 millionin revenue over the 20-year life of the tax, making it necessary toleverage the tax revenue using other sources of funds including

grants, loans or other forms of financing.

Because the City will target external funding opportunities andappropriations for surface transportation, stormwater(drainage), water and sewer program funding,the City’scomprehensive capital improvement plan will allow foropportunities to align projects with external funding sourcecriteria. Several funding sources have been identified forprojects based on what has been typically used for past andcurrent projects.

Table 4. Targeted Funding Sources to Leverage Sales Tax Revenues

Code Type1PTax Municipal Special Sales TaxW/S Water and Sewer RevenueGF General FundsCDBG Community Development Block Grant FundsDWSRLF Drinking Water State Revolving Loan Fund

EDWSRLF Emergency Drinking Water State Revolving Loan FundWWSRLF Wastewater State Revolving Loan FundTIGER Federal Highway Administration TIGER GrantFEMA Federal Emergency Management Agency Flood Hazard Mitigation GrantsACOE Army Corps of Engineers Grant ProgramsUSDA US Department of Agriculture Natural Resource Conservation GrantsRB Revenue BondSA State Aid for LSBP BridgesSTP Surface Transportation FundsGOB General Obligation BondMDA Mississippi Development Authority Loans or GrantsG Other Grant Funds

In addition to the external funding sources the City has targeted for capital projects, there is also a need to leveragethe sales tax using public or private financing methods. Given the $1.5-2B in infrastructure improvements identifiin the CIP thus far, a completely Pay – As-You-Go strategy will not work for this program to achive the level of


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investment needed.The most appropriate strategies will be vetted by the City’s Municipal Advisor and approved bythe governing authorities of the City as provided for in the Municipal Special Sales Tax legislation.

Table 5. Financing Methods

Public Financing Private FinancingShort-Term, Tax-Exempt Debt Direct SourceGeneral Obligation Bonds Public-Private Partnerships (P3)Revenue BondsGreen BondsState Revolving FundsFederal and State GrantsGovernment Loans

RENEW JACKSON IMPLEMENTATION STRATEGY

The municipal special sales tax-funded infrastructure improvementsprogram, RENEW JACKSON, has started implementation in twophases:

Phase 1

Development and implementation of a Year 1 CIP whichincluded projects that were shovel ready as well as projectsrequiring design that would become the constructionprogram for Years 2 and 3 of the program

Restoring roads under the Operation Orange Cone initiative(utility cut restoration to resolve cuts in backlog since 2007,spot repairs, repaving neighborhood and major streets,pothole blitz)

Purchase of capital equipment for in-house projectsidentified in the CIP and 2013 Drainage Master to improve eligible infrastructure, implement other assetmanagement measures; this will enable the in-house crews to perform preventive or interim mainteance thimproves the condition of infrastructure more readily in response to community demand and urgent needs

Established anURGENT NEED set aside to fund emergency infrastructure repairs Engagement of a Program Manager to augment the City’s resources and efforts to implement the

infrastructure improvement program and get contracts established

Phase 2

Development of final master plan based upon feedback from various stakeholders Development of a comprehensive CIP, including sales tax eligible projects and expenditures Finalizing a financing strategy to continue improvements


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PROGRAM MANAGEMENT

As part of the implementation strategy for the RENEW JACKSON infrastructure improvement program, the City helected to utilize the services of a program manager to augment city staff and provide program specific services foreligible infrastructure improvements. Past programs implemented without the proper controls and oversight toprotect the interests of the City have proven that program management is necessary when additional expertise isrequired, the number of on-going projects exceeds the City’s internal management capacity and specific outcomesneed to be achieved. The program managers will provide infrastrcuture assessment, project planning and deliveryservices. They are also tasked with keeping the public informed, assiting to identify and apply for external fundingThe program manager will also prepare annual CIP project updates; develop a green infrastructure strategy as wellas standards and specifications. Estimated program management costs were included in the CIP budget for Year 1and it is envisioned that program management services will be on-going with the PM’s engagement scalable basedupon the program worklload.

COMPLIANCE MONITORING AND REPORTING

Pursuant to Section § 27-65-241 (7)(h) of the Mississippi Annotated Code, thecommission shall monitor thecompliance of the municipality with the master plan. In order to do so, a process has been established forcompliance monitoring and reporting:

Compliance Objective ProcessEligible Expenditures This master plan has documented what are to be considered eligible

expenditures. Annually the City will provide the updated Capital ImprovementPlan with the schedule of planned expenditures to the Commission forcompliance monitoring purposes, not approval.

Tracking Revenues and

Expenditures

The City will provide a monthly statement of revenues and expenditures and

changes in fund balance for tracking purposes. This statement will includerelated grant funds, debt service and budgeted vs actual expenditures. Annual Audit Revenues and Expenditures from the sales tax will be audited annually at the

time of the City’s annual auditin accordance withGenerally AcceptedGovernment Auditing Standardsand in conformance with theInternationalStandards for the Professional Practice of Internal Auditing.


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URGENT NEEDS

It is difficult to predict when and where infrastructure will fail. In this year alone, the City has declared severalemergencies for infrastructure failures including the collapse of Robinson Road bridge, a 24-inch sewer collapse, lof a water treatment plant. From a public heath stand point there is no more critical issue than addressing thecorrosion control treatment at the water treatment facilities. Citizens repeatedly express concerns regarding the timit takes to address issues. Because expenditures of the revenue are to be made at the discretion of the City, thereshould be the maximum amount of flexibility to fund emergency contracts for repair or replacement of infrastructu As part of the program implementation strategy, urgent need contracts have been programmed in the CIP for eligibinfrastructure improvements.

Figure 5. Robinson Road Bridge Collapse


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INFRASTRUCTURE SYSTEMSIn the following sections, details for each infrastructure system will be provided as follows:

State of Existing Assets Historical Capital Investments and Typical Funding Sources Compliance Requirements Programmatic Initiatives Investment Priorities

Table 6. Overview of Infrastructure Improvement Needs

Assets Eligible for Sales Tax Funding Required Improvements

Roads and Bridges

1200 maintained miles of roadway (2,055 lane miles)150+ bridges and hydraulic structures

Over 300 miles of roadways identified are in need ofresurfacing (milling and overlay); 10% of roadways identifierequire complete reconstruction; ADA Compliance and SignaUpgrades;MDOT State Aid has evaluated the City’s 150+bridge structures and recent results show that 19% of theCity’s bridges require replacement of critical maintenance.

Drainage

14 major drainage channels and tributarys; unknownmiles of storm drain pipe and appurtenances

Neighborhood flooding, channel erosion and structural failurand upsizing drainage conveyance; estimated need of over$950M over 20 years

Water

1100 miles of water main; two water treatmentfacilities; 15 storage tanks and water systemappurtenances

40% system water loss; 8% of the system is over 100 yearsold; 97 miles of 2 to 4-inch pipe need to be upsized; cast ironpipe replacement and water treatment plant upgrades for totaestimated improvement need of over $520M

Sewer

950 miles of sewer main; three wastewater treatmentplants and 98 pump stations

Estimated consent decree program improvements estimated a$400M


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ROADS AND BRIDGESThe City of Jackson is responsible for maintenance of 2055 lane miles of roadway in the City of JacksonThis includes major gateways, arterials, collector roads and residential neighborhood streets. In additionto responsibility to maintain roads the City is also responsible for maintaining associated signage and the

signalization network including above and below ground infrastructure of over 2,000 signals across the City and ov300 intersections. Adjacent sidewalks, where they exist, and other structures in the City’s right-of-way must also bemaintained. The Traffic Maintenance Section of the Infrastructure Management Division maintains 324 traffic signwithin the city limits. This number includes 47 signals on Mississippi Department of Transportation highways thaCity must maintain by statute. Approximately half of the traffic signals are operated by equipment cabinets that are

to 40 years old and/or controllers that are over 15 years old. Most signals utilized in-ground loop detectors that aresubject to frequent cuts and failures due to poor asphalt and shifting yazoo clay. Traffic maintenance also provideslimited maintenance to the traffic monitoring system that is shared with MDOT.


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There are over 150 bridge structures throughoutthe City of Jackson including timber bridges,concrete bridges and concrete box culvertstructures. The average life of the bridge

structures currently in service is 35 years. All bridge structures

are inspected every two years by the Mississippi Department ofTransportation State Aid Division; however, in-house staff in theEngineering and Infrastructure Management Divisions regularlymonitors bridge structures to assess safety concerns. Thisdiligence and use of in-house expertise has resulted in removingbridges from service prior to collapse.

STATE OF EXISTING ASSETS

ROADS

In 2014, the Central Mississippi Planning and Development District (CMPDD)performed a pavement condition assessment of all the principal and minorarterial streets and collector streets within Hinds County including anassessment of the pavement condition on a scale from 1 – Good Condition to5 – Worst Condition (See Appendix C).

The assessment provided maintence recommendations for each street basedon its roughness and condition. Streets were either satisfactory, required

patching or crack sealing, replacement of a surface coat, an overlay ofasphalt, or would need to be rebuilt/ replaced (reconstructed). Streetreconstruction i.e. rebuilding or replacing a street is the most costly and hasbeen estimated at approximately $1M per mile to complete. This estimateincludes milling, replacement of subbase, new asphalt, restriping andreplacement of stom drains. An averag of 3 lane miles per mile of road wasused. Overlaying streets is the second most costly maintenance strategy withthe cost of resurfacing estimated to be $150,000 per lane mile. This includesmilling and leveling (to align with existing curb and gutter systems), overlay ofasphalt, and restriping.

The City has used this assessment along with internal data such as possibleexternal funding opportunities, service requests, and upcoming economicdevelopment plans to begin programming streets as future CapitalImprovement Projects.


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Analyzing Data to Prioritize Streets

Major Streets (Principal / Minor Arterials & Collectors):

Major Streets selected for improvement are evaluated based on data provided by CMPDD and divided into thr

categories: little to no work needed, resurfacing, and reconstruction. The main factors taken into consideration are: Pavement condition index (PCI) Reconstruction Score Traffic volumes

1.1 Pavement Condition Index (PCI)

The PCI is a numerical indicator based on a scale of 0 to 100. ThePCI measures the pavement’s structural integrity and surfaceoperational condition. Its scale and associated ratings are shown in

Table 7 and

Table 8. The PCI rating also gives a good indication of

the pavement service life and thus an aid in scheduled maintenanceoperation.

In the analysis of Major Streets using CMPDD data, weighted scoresare given to streets based on PCI values (SeeTable 7). Streets withPCI ratings above 85 are given a score of zero (0). A zero (0) valueindicates high service life and good pavement condition. Streets withPCI values above 85 would not require resurfacing, but wouldinstead be considered for possible patching or crack sealingdepending on the recommendations from CMPDD. Streets withuseable service life, but with ratings below 85 are assigned values

for constructability (OVERLAY) as shown inTable 8.PCI ratings below 37 fall in the poor to very poor range and thereforerequire some reconstruction. A value of zero is given if the PCI ratingis 37 and below. Also, if CMPDD recommendation for maintenanceis to rebuild/reconstruct street, a zero (0) value is given.

1.2 Traffic Volumes

Streets with high traffic volumes are given priority based on a weightedscale. Streets with two (2) standard deviation above the mean are given100 points and streets with one (1) standard deviation below the mean

a score of 25.1.3 Final Analysis

The final score assigned to each street is a summation of values assignedbased on PCI, reconstruction score, and score based on traffic volume.The higher the number, the greater the priority for maintenance.

Table 7. PCI Rating ScalePCI RATING100 Excellent85 Very Good70 Good55 Fair40 Poor25 Very Poor

10 and below Failed

Table 8. PCI Rating Scale Scoring ValuesPCI VALUES SCORE

85 0

Table 9. Traffic Volume Score Traffic Volume Score

Mean 7081

STD 5533

23679

18147 10012614 75

7081 50

1548 25


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Based upon the analysis performed, some streets had higher priority score but weren’t chosen for Year 2 OperationOrange Cone. Streets with higher traffic volume were given high priority with regards to overlay. Also, prioritygiven if street was a major gateway to commercial areas and connection to interstate. A representation of major streefrom all Wards were selected.Appendix C: Table 1 – Streets lists the major streets where condition assessmentshave been performed.

Neighborhood Streets:

The data provided by CMPDD is useful for tracking the condition of many arterials and collectors; however, there a number of streets that the City is responsible for maintaining that are not principal or minor arterial streets orcollector streets. These are shorter neighborhood streets that connect the identified collector streets to the homes ofresidents. To have a more comprehensive understanding of the condition of City streets, an additional assessmenthas begun on neighborhood streets. This assement was done in steps to establish funding priorities.

Step 1: DPW considered all streets with available priority rating ( as of now only those streets that were identified GIS database are taken into account). These were streets first rated by the Department in 2007. These streetsserved as a basis for reavaluation and the streets rated the lowest in 2007 were reevaluated first. In addition to thislist, recommendations from the Commission Board, City Council, and general public through public outreach wereconsidered.

Step 2: DPW took past resurfacing data to update the compiled list so that streets that were resurfaced since 2007were given a lower priority rating. This allowed the Department to focus on the most neglected streets.

Step 3: DPW analyzed service request data to determine the impact each street would have on the general public.Streets with mutliple service requests were deemed a higher importance to citizens than streets with no reportedservice requests.

Step 4: DPW conducted field visits of each street by Ward to assess its current condition and assign a new priorityrating ranging from 0-1000. The lower the score, the higher the priority. This process allowed the City to identifystreets with the highest priority rating from above group of streets.

Step 5: DPW shared collected data with stakeholders and received feedback on the streets identified. New streetsidentified through this consultation process were included and evaluated.

Appendix D: Operation Orange Cone for Neighborhood Streets lists condition assessment results where it hasbeen performed for over 400 streets in preparation of the final master plan and prioritization of Program Year 2 strresurfacing program.

Bridges:

The Mississippi Department of Transportation, State Aid Division conducts annual inspections of City owned bridgand assigns each bridge a sufficiency rating. The sufficiency rating formula provides a method of evaluating highwbridge data by calculating four separate factors to obtain a numeric value which is indicative of bridge sufficiency remain in service. The result of this method is a percentage in which 100 percent would represent an entirelysufficient bridge and zero percent would represent an entirely insufficient or deficient bridge. The formula considethe structural adequacy; functional obsolescence and level of service; and essentiality for public use.


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COMPLIANCE PROGRAMS/PRIORITIES

The Americans with Disabilities Act (ADA) law, specifically Titles II and III governs transportation and publicaccommodations for people with disabilities. The City is in the process of implementing an ADA Transition Plan tremove physical barriers to accessibility and incorporate ADA compliant features in right-of-way improvementsincluding curb cuts and sidewalk modifications during roadway and sidewalk improvement projects.

The Federal Highway Administration (FHWA), which has oversight of surface transportation programs and setsminimum requirements and standards for transportation infrastructure, has established an asset management focus.To best service and maintain our Bridges, the Engineering Division will adopt the Systematic Preventive MaintenaProgram (SPM) that is currently used by FHWA as part of our Department-wide Asset Management Initiative. The AASHTO Subcommittee on Maintenance’s definition of “preventive maintenance” includes the phrase “a plannedstrategy of cost-effective treatments.” An SPM program is based on a planned strategy that is equivalent to having asystematic process that defines the strategy, how it is planned, and how activities are determined to be cost effectiv An SPM program for bridges can be defined as a planned strategy of cost-effective treatments to existing bridgesthat are intended to maintain or preserve the structural integrity and functionality of elements and/or components, aretard future deterioration, thus maintaining or extending the useful life of the bridge.

PROGRAMMATIC INITIATIVES

Given the magnitude of the investment needed to improve the conditionof the City’s streets, upgrade and innovateour signalization and bring the City into full compliance with ADA requirements the City recognizes the need to insmartly. This means addressing the underlying issues of water and sewer utility failures, drainage issues andflooding that cause standing water. These chronic issues have led to severe degradation of the City’s streets. DPWhas therefore initiated a DIG ONCE philosophy requiring utilities are addressed before roadways are resurfacedincluding a street cut moratorium by third party utilities and curb to curb restoration of cuts to newly resurfaced

streets. A review of past roadway resurfacing projects shows that resurfaced streets have been cut repeatedly dueto utility failures. This is a major driver for using an integrated planning approach to identify all opportunities forinfrastructure investment in a project location. This integrated planning approach will lead to implementation ofComplete Streets and Green Streets projects. Implementation of the ADA Transition Plan is also a programmaticinitiative.


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Figure 7. Open vs. Closed Service Requests (2014- May 2016)

While it is envisioned that major gateways, arterials and collector streets will be addressed as part of planned capitprojects; DPW will initiate a renewed 5-year streets resurfacing program called Operation Orange Cone. Thisprogram will be driven by condition assessment and pavement management data collected as part of the City’spavement management system, the number of utility cuts and other data to identify priorities for each Ward of theCity. The street resurfacing program will be part of our new asset management initiative where we will be investinmoney wisely to extend the service life of our streets by using preventive maintenance measures before the roadwareaches a point of deterioration that requires a more sizable investment and planning. As additional data includingfunding availability are reviewed, goals for city-wide Street resurfacing and maintenance will be established. Thisprogram will be implemented using a combination of in-house crews and contract labor starting with the street listein Appendix C & D. In-house crews will also continue to address pot hole related service requests; however, streetresurfacing by contract will address both potholes and street cuts.

0500

10001500200025003000350040004500

500055006000

R e s u r f a c i n g / P a v i n g

C u r b & G u t t e r R e p a i r

D r i v e w a y E n t r a n c e R e p a i r

L e v e l i n g D i p / U n e v e n

P a v e m e n t o r

C o n c r e t e / P a t c h i n g

P a v e d S t r e e t s / I n - h o u s e

W o r k O r d e r s

P o t h o l e R e p a i r

S t r e e t P a t c h i n g

U t i l i t y C u t R e p a i r

Infrastructure ManagementPaved Streets Division CSRs

OPEN CLOSED

POTHOLES vs UTILITY CUTS


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In the past, street resurfacing has been prioritized utilizing the City’s Pavement Management System. This systemrequires all streets to be evaluated every five years and assigned a priority rating from 0 to 1000. Streets rated 300or below were considered for resurfacing provided there was adequate budget. Ratings under the current system fostreets across the City are presented in the Tables in Appendix C and D.

Implementation of a systematic preventive maintenance program (SPM) will assist the City in qualifying for availaFederal Funds for bridge replacement or rehabilitation. In addition to developing a formal bridge maintenance andasset management program, the 1% Sales Tax funds will be used toward implementation of a Jackson Safe Bridgesprogram including timber bridge replacement. This program was submitted as a Public-Private Partnership (P3)Program in response to the US Department of Transportation’s Fall 2014 r equest for P3 pipeline projects andpresents a way to leverage the limited revenues being generated by the sales tax.

Also under the 1% Sales Tax program, the Traffic Engineering section will initiate “Operation Green Light” acomprehensive program to make upgrades to the City’s signal network to compliment investments in rebuilding andresurfacing City streets.

INVESTMENT PRIORITIES

As evidenced by the number of service requests for potholes and utility cuts, roadway improvements in the City ofJackson is an investment priority for use of the 1% Sales tax funds. We understand that the condition of the roads iJackson not only impact public perception of the City, but there are real impacts to vehicles traveling our city streeincluding service and emergency vehicles. The limited investment in upgrading the City’s roads has been due tolimited available funds. The deterioration of roads and the increasing number of utility cuts due to pipe failures haoutpaced the production of in-house crews that are responsible for roadway maintenance because many of the roadare beyond a state of repair and instead need complete reconstruction. The investment priorities for our roads are afollows:

Development of gateway improvement projects using Complete Streets or Green Streets concepts thatincorporate integrated infrastructure improvements, roadway reconstruction where required, greening, utilwork, signal upgrades, ADA compliance measures and right-of-way improvements to draw economicdevelopment and improve the vibrancy of communities

Capital projects that address the major streets and neighborhood streets Projects where grant funding has been identified and allocated to the City for

specific roadway projects Operation Orange Cone: Initiation of an in-house and contractor based roadway

resurfacing program to improve the condition of streets while planning for capitalprojects. This will also require investing in additional and upgraded capital

equipment. Upgrades to the City’s signal network utilizing new technology and implementing measures to sustain

signals. New developments served by bridge or culvert structures All major arterial bridge crossings Replacement of all timber bridge structures


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Table 10. City of Jackson's Major Drainage ChannelsWhite Oak Creek Belhaven Creek Lynch Creek Trahon CreekPurple Creek Bogue Chitto Creek Three Mile Creek Big CreekEastover Creek Eubanks Creek Hardy Creek Smith CreekHanging Moss Creek Town Creek Cany Creek


The major drainage channels, minor tributaries and streams that flow through the City’s neighborhoods, in manyareas adjacent to private property, have degraded over time with heavy rainstorms causing scour and erosion. The

erosion of these natural channels and drainage ways hasled to loss of property and in some cases threats to publichealth and safety. During heavy or at times moderaterains, the City’s storm drain system becomesoverwhelmed leading to flooded streets and standingwater. This issue is attributed to the capacity of thesystem to handle the amount of rainfall, the condition ofthe system that inhibiting the proper continuous flow ofdrainage and difficulty in proactively maintaining drainageways and the storm drain infrastructure to keep them clearof debris.

While the Bridges and Drainage Section of theInfrastructure Management Division is responsible formaintaining the drainage system and carries out activitiesincluding repairing and replacing catch basins, storm draininlets, storm drain pipes, and removing debris fromdrainage channels to promote proper drainage flow, limitedresources has made it difficult to keep up with service leveldemands.

This section is responsible for implementing a PipeReplacement Program. Many of our storm drain pipes aremade of corrugated metal which have begun to rust anddeteriorate, and the purpose of this program is to replacethose storm drain pipes to promote proper drainage. This

section is also responsible for trimming and removing dead trees from the City’s right of ways, and also removingtrees that have fallen into drainage channels. During adverse weather, Bridges and Drainage is also responsible forremoving fallen trees from City streets and responding to areas that are experiencing flooding issues.

0

200

400

600

800

1000

1200

Number of SRs 2011-2015

DitchMaintenance

DrainageMaintenance

ErosionControl


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As part of the Federal Clean Water Act, the U.S. EnvironmentalProtection Agency (US EPA) has developed stormwatermanagement regulations as part of a National Pollutant DischargeElimination System (NPDES) permitting program to improve thewater quality of surface waters like the Pearl River. Under thisprogram, the City of Jackson is considered a Phase I MS4 NPDESpermitted municipality and required to hold a 5-year permit formanagement of stormwater in the City. The City is on its secondgeneration of the permit and will be required to renew its MS4Phase I Permit in 2017.

As part of the requirements for the program, the City is required to develop and maintain a stormwater managemenprogram that implements best practices to protect surface water quality and prevent high volumes of stormwater

runoff, or drainage, from causing flooding. Best practices include structural improvements to address erosion,increase capacity of the storm drainage system and implementation of green infrastructure practices that retain andfilter stormwater drainage; or non-structural practices like implementation of routine and preventive maintenanceprograms. The City is required to track the progress towards these goals, implementation of best practices and therequirements in the MS4 Permit to provide a report to MDEQ on an annual basis. The MS4 program also includessix control measures for which the City is required to implement best practices:

Public Education and Outreach Public Involvement and Participation Illicit Discharge Detection & Elimination Construction Site Stormwater Runoff Control Post-Construction Stormwater Management in New Development and Redevelopment Pollution Prevention and Good Housekeeping for Municipal Operations


It is anticipated that the MS4 permit renewal in 2017 will bring with it requirements to use innovative practicesincluding green infrastructure and low impact development to better manage stormwater drainage. This programprovides an opportunity to restructure the City’s stormwater management program, update best practices andimplement a green infrastructure strategy in the City that meets several goals and objectives including increasing thCity’s tree canopy. This program also provides an opportunity to implement green solutions along drainage waysthat not only stabilize channels but also provide water quality benefits.

In order to develop comprehensive sustainable solutions to localized drainage issues, the City understands that itmust develop a more comprehensive plan, watershed by watershed, to identify opportunities for improvement,solutions to improve the drainage system and protect existing flood prone areas. This will require comprehensivehydraulic and hydrologic modeling as well as identification, characterization and mapping of existing drainage syscomponents.


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Based on historical data and the high volume of drainage complaints during and after storm events, DPW recogniza need to implement a routine and preventive maintenance program that limits the impacts of high frequencyrainstorm events. This program will be implemented by in-house staff as part of the Department’s AssetManagement Initiative.

USE OF GREEN INFRASTRUCTURE

Green infrastructure uses vegetation, soils, and natural processes tomanage water and create healthier urban environments.The mainobjectives of this approach include reducing stormwater runoff,increasing adaptability to extreme weather, minimizing heat stress,increasing biodiversity, encouraging food production, improving airquality, promoting clean water, maintaining healthy soils, andproviding recreation, shade, and shelter. Green infrastructure is theecological foundation for social, economic, and environmental health.

Not only does it address regulatory requirements, but it makescommunities more vibrant. Building this type of infrastructure willinvolve projects from restoring Smith Park to increasing the city’s treecanopy.

HISTORICAL INVESTMENTS AND FUNDING SOURCES

The City has typically funded drainage improvements with General Funds, Community Development Block GrantFunds, and Federal Funds allocated by the Natural Resources Conservation Service to provide for open channel

stabilization and widening projects. In house crews have implemented a pipe replacement program to addresschronic drainage issues and supplement limited capital resources. Completed projects are listed in the table below


The limited investment in upgrading the City’s drainage system and making much needed improvements throughouthe City has been due to not having the available funds or a sustainable dedicated funding source. As evidenced bythe number of service requests for drainage related issues, the damage to public and private property caused byrepeated flooding; the miles of drainage ways including road-side ditches that need to be assessed and addressed;drainage improvements in the City of Jackson is an investment priority for use of the 1% Sales tax funds. Specific

investment priorities include: Neighborhood drainage improvement projects that will mitigate localized flooding in communities. Regional stormwater management improvement projects including regional detention systems to control

runoff. Watershed restoration projects incorporating upland stormwater quality and quantity control practices to

improve surface water quality; limit sediment erosion and mitigate flooding by controlling stormwater flowdownstream areas.


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Drainage channel improvement projects that where feasible, restore the channel to a natural state toimprove water quality and stabilize the channel to protect against erosion. Project types include streamrestoration, channel stabilization/enhancement and flood control. Priority segments of major drainagechannels are presented in the Comprehensive CIP.

TARGETED STREET FLOODING IMPROVEMENTS

This includes culvert replacements, tree and debris removal, outfall cleaning and rip-rap protection along BelhavenCreek, Caney Creekn, Eastover Creek, Eubanks Creek, Hanging Moss Creek, Hardy Creek, Lynch Creek, PurpleCreek, Three Mile Creek Trahon Creek, and White Oak Creek as to alleviate surface flooding in these areas.Imrpovement needs over a 20-year program are currently estimated to be over $27M.

NEAR TERM PROTECTION MEASURES

Near term protection measures includes bank stabilization and channel restoration along Belhaven Creek, Big CreeBogue Chitto Creek, Caney Creekn, Eubanks Creek, Hanging Moss Creek, Lynch Creek, and Three Mile Creek.Improvement needs are currenty estimated to be approximately $325,688,886M over 20 years.

LONG-TERM CAPITAL IMPROVEMENTS

Long-term capital improvements include 100-yr storm channel capacity improvements, capacity retention/detentiohold stormwater and/or slow down the flow of stomrwater to adress flooding and erosion issues as well as greeninfrastructure projects that provide for water quality and drainage management with more aestectically pleasingvegetated practices. The combined improvement need over 20 years is estimated to be approximately$642,330,858M.


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WATERThe City of Jackson supplies high quality drinking water to consumers in the Cities of Jackson andByram. The distribution service area is approximately 150 square miles and provides potable water toabout 174,000 people. The City’s water supply system includes two water treatment plants, O.B. Curtis

(50 MGD) and J.H. Fewell (32 MGD); one booster pump station; and sixteen elevated and ground storage tanks wia combined storage capacity of 21 million gallons. Drinking water is distributed through 881 miles of water mainsranging in size from 2-inches to 48-inches in diameter. Most of these mains are constructed of cast iron, but some the larger mains are steel or reinforced concrete. Other system appurtenances include 4,000 valves and 7,000 firehydrants.


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The ice storm of 2010 highlighted the vulnerabilities of the water system when mass water outages were experiencacross the City, particularly in the Downtown area. While the City produces high quality water, an estimated 40%

the water we are paying to treat is unaccounted for or lost in water main leaks and breaks as well as leaking valvesand hydrants. Consumers are experiencing discolored water due to build-up in the water mains that have been inservice for 60 to 100 years. These issues impact the reliability of the existing system and investment in replacingwater mains is needs to reduce water loss and improve water quality received at the tap. In some small areas of theCity still have 2-inch to 4-inch diameter water mains, adequate fire protection is a concern; these areas are aninvestment priority for small diameter pipe replacement.

The water treatment plants and storage facilities are also in need of upgrades to maintain service levels; however,those improvements will not be included in the scope of the 1% sales tax program.


Operation, maintenance and capital improvement of the water system is governed by the federal Safe Drinking Wa Act and the Mississippi Safe Drinking Water Act of 1997 and Mississippi Primary Drinking Water Regulations. ThCity’s Water and Wastewater Operation is responsible for ensuring that our system meets or exceeds requiredregulations, standards and the requirements of the State’s Public WaterSupply Program including identification andelimination of operational and maintenance problems that may impact water quality. Replacing water mains that aleaking and have build-up of deposits causing discolored water will aid in meeting this objective and cut down on tnumber and frequency of Boil Water Alerts that are issued.


Given the high percentage of water loss from the system and the repeated water outages; the water system is aprimary target for the Department’s Asset Management Initiative. In order to reduce water loss and eliminate watersystem failures, investment must be made in replacing water lines that are beyond their useful life. Under the scopof the 1% Sales Tax, a water line replacement program will be initiated starting with replacement of 2 to 4-inch walines as well as cast iron pipeline replacement.

Additional programmatic initiatives include the Water Maintenance Division initiating an overall water systempreventive maintenance program to:

Assist the Fire Department with hydrant maintenance and asset management Valve exercising, maintenance and replacement Water system flushing and where possible water main cleaning and lining Water system audit including development of a water system hydraulic and water quality model Mapping the water system and related appurtenances

These initiatives may result in capital projects or in-house asset program management activities that would qualifyuse of the 1% sales tax revenues.


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The City funds water system improvements using water revenues generated from the water charges on consumers’water bills. Additional funding has been in the form of grants, loans or bond proceeds. While the 2013 water rateincrease of 29% has generated additional revenue; it is just covering the cost of service for operation andmaintenance and repayment of debt service on completed or on-going projects. Recent on-going and completedprojects include:

Water Infrastructure Improvement Program (Siemens) $90M – On-going Prestressed Concrete Ground Storage Tank Contract 1 - $2M 24” Water Transmission Main – Contract II - $1M Maddox Booster Station – Contract III - $2.2M Fortification Water Tank - $4M 48” Water Transmission Improvements $5M – On-going


Because the water system has a sustainable dedicated funding source, water system related projects recommendedfor funding by the 1% sales tax revenue are critical improvements to provide adequate fire protection and addressemergencies by supplementing water funds. This will include upgrading 2 to 4-inch water lines and emergencyrepairs for unplanned failures. Water system upgrades that can be integrated with other special sales tax capitalprojects will utilitize special sales tax funds as well. Projects that facilitate economic development and urgent needimprovements to the water system to protect public health will also be eligible to utilize special sales tax funds.


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SEWERThe City owns and operates three wastewater treatment facilities, plus numerous interceptor andcollector sewers throughout the metropolitan area, and provides sewer services to the City and parts ofHinds County, western Rankin County and eastern Madison County. The primary wastewater treatmen

facility, Savanna Street Wastewater Treatment Plant (WWTP), has a 46 million gallons per day (MGD) permittedcapacity and was placed in operation in 1975. The Trahon WWTP has a capacity of 4.5 MGD and treats flows fromthe Trahon and Big Creek Basins. The City’s third treatment facility is located in the Presidential Hills subdivision inthe northwest part of the City. It was recently upgraded to a new facility providing 0.75 MGD of permitted treatmecapacity. Wastewater flows to these facilities through a collection system with pipes ranging in size from 4-inches96-inches in diameter.


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In 2013 the City entered into a federal Wastewater Consent Decree due to repeated sanitary sewer overflows andwastewater treatment plant by-passes. The


Operation, maintenance and capital improvement of the wastewater collection system is governed by the federalClean Water Act and the Mississippi Department of Environmental Quality WPC1 Regulations. In November 201the City reached a settlement with the U.S. Environmental Protection Agency (EPA), the Department of Justice, anthe Mississippi Department of Environmental Quality (MDEQ) to make improvements to the City’s sewer systemseliminate unauthorized overflows of untreated raw sewage (Sanitary Sewer Overflows or SSOs) and unauthorizedbypasses of treatment at the Savanna Street Wastewater Treatment Plant (WWTP).

The consent decree requires Jackson to implement comprehensive injunctive relief within approximately 18 years,with the majority of the work being done in the first 11 years of the consent decree program. The remedial measur

required by the consent decree include: Early action projects to upgrade the Presidential Hills WWTP and make improvements to Savanna Street

WWTP Evaluation and rehabilitation of the wastewater collection and transmission system Development and implementation of a performance evaluation and composite correction program for the

Savanna Street wastewater treatment plant Development and implementation of programs to insure proper capacity, management, operations and

maintenance of the sewer system


The primary initiatives for the sewer system are implementation of the consent decree programs and assetmanagement to maintain compliance and eliminate sanitary sewer overflows. The consent decree program projectwill be considered in conjunction with the stormwater projects in an integrated plan designed to improve water quathrough both gray and green infrastructure improvements.


The City funds wastewater system improvements using sewer revenues generated from the sewer charges onconsumers’ water bills. Additional funding has been in the f orm of grants, loans or bond proceeds. While the 2013

sewer rate increase of 108% has generated additional revenue; it is just covering the cost of service for operationand maintenance and repayment of debt service on completed or on-going projects. Recent on-going and completeprojects include:

West Bank Interceptor Flow Monitoring $350K – On-going West Bank Interceptor Condition Assessment $600K – On-going Wastewater Collection System Flow Monitoring $200K – On-going Savanna Street WWTP Influent Pump Station $2.5M – On-going


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WWTP Comprehensive Performance $700K – on-going Evaluation/Composite Correction Program $1M – On-going WWTP Solids Removal Project $10M – On-going Presidential Hills WWTP Improvements $7M West Bank Interceptor Rehabilitation Phase 3 $12M – On-going West Bank Interceptor Rehabilitation Phase 4 & 5 $19M – On-going


Because the wastewater system has a sustainable dedicated funding source, sewer system improvement projectsare a low priority for 1% sales tax funds; with the exception of sewer collapses and other urgent need repairs orwhere there are integrated infrastructure improvement opportunities. The CIP designates those projects that aresales tax eligible and candidates for sales tax funding.


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CAPITAL IMPROVEMENT PLANNING A Capital Improvement Plan (Program), or CIP, is a short-range plan, usually four to ten years, which identifiescapital projects and equipment purchases, provides a planning schedule and identifies options for financing the pla A CIP typically includes:

Listing of capital projects or equipment Timeline by fiscal year for the planning, design and/or construction/completion of the project or capital

purchases Planned funding sources and financing options Justification for the project; alignment with established criteria

The City of Jackson has been without a formal CIP for over ten years. The City has elected to develop a five-yearComprehensive Capital Improvement Plan for Infrastructure Improvements which will be updated annually to inclnew projects, reflect changes in priorities, and program a future year with the first year of the plan being the currenfiscal year.

Capital projects/expenditures are those that maintain, enhance, alter or improve an asset or infrastructure and mustmeet the following criteria:

Program management to provide professional support services (including scope management, cost control,schedule management and quality control), technical expertise and public engagement required forsuccessful projects delivery

New construction, expansion, renovation, or replacement project for an existing facility or facilities havingtotal cost of at least $10,000 over the life of the project; project costs may be expended in phases andincludes planning, condition assessment, cost of land acquisition, architecture/engineering professional

services, construction contracts and other related contract services for project delivery such as publicinformation and outreach Major maintenance or rehabilitation project for existing facilities with a cost of $10,000 or more and an

economic life of at least 10 years. Purchase of major equipment (assets) costing $50,000 or more with a useful life of at least 10 years.

TheCity’s current 5-Year Comprehensive Capital Improvement Plan lays out the capital improvement needs forFiscal Years 2016 – 2020. The FY 2016-2020 Capital Improvement Plan (CIP) is a forward looking program outlinthe City of Jackson’s priorities for infrastructure improvements over the next five years.The general CIP Planningprocess is shown in the following figure.


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FIGURE 8. Capital Inprovement Planning Process

ASSESSMENT CRITERIA

As part of the CIP planning process, all proposed capital expenditures will be aligned with criteria that drive the nefor the expenditure. The criteria, including 1% sales tax funding eligibility, is representative of policy directions foinfrastructure improvements as well as short and long-term objectives of the City. This is meant to provide anassessment of the relative priority of capital expenditures and resulting funding commitments. The assessmentcriteria are listed inTable 11.

Table 11. Project Assessment Criteria

Health, Safety &Welfare An assessment of the degree to which the project improves the health, safety and welfare ofthe community in which the project is sited, as well as improvements across the City. Forexample, projects that result in improved fire flows, reduction of accidents, improved structuralintegrity, and mitigation of health hazards and resolution of exigent circumstances.

Regulatory orLegal Mandates

An assessment of the degree to which the project is under a regulatory order or other legalmandate, or meets a federal, State or local regulatory requirement. For example, projects thatare required by consent decrees, court orders, and other legal mandates.

IntegratedImprovements

An assessment of the degree to which a project meets multiple infrastructure systemimprovement needs. For example, a roadway reconstruction project that addresses flooding

issues, signals, ADA compliance needs and utility improvements vs a project that justaddresses repaving a road.

OperationalImprovements

An assessment of the degree to which the project supports operational efficiency and effectivedelivery of services.Improvesoperational functions and services versusSustainingoperationalfunctions and services.

InfrastructureImprovement &

Capital EquipmentNeeds Identified

ProjectDevelopment &Cost Estimating

CIP ExpenditureRequests & Annual

Updates

CIP Annual BudgetDevelopment &

Financing


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Reduction inOperationalCosts

An assessment of the life-cycle costs of proposed improvements compared to the currentoperational costs.

ExternalFundingOpportunity

Projects funded by or with the potential for funding by grants or other external funds includingpublic/private partnership financing opportunities.

CommunityDemand

An assessment of the degree to which the project meets a community need or responds tocommunity demand, including resolution of CSR complaints.

1PTax Eligible An assessment of the eligibility of the proposed expenditures for municipal special sales taxfunding.

PROJECT/EXPENDITURE REQUESTS

On an annual basis CIP request forms will be used to compile information for the proposed expenditures in order tobe considered for funding. These request forms identify the proposed capital expenditures which allow for budgetplanning and forecasting long-term capital funding needs. The project phases include:

Project Planning: Includes the development of the project scope, feasibility study, a design budget,and order of magnitude construction budget.

Design: Includes the development of any environmental documents, legal documents, constructionplans and specifications, and a detailed construction budget.

Construction: Includes site preparation, utility and infrastructure placement, equipment installation,construction, and environmental mitigation.

Equipment Purchase: Includes capital equipment purchases for routine, preventive and emergencymaintenance and repiar for public infrastructure assets.

FISCAL YEARS 2016 - 2020 CAPITAL PLAN

The City’s Comprehensive Capital Improvement Plan for Infrastructure, FY 2016 - 2020 is a forward looking planoutlining the City of Jackson’s priorities for infrastructure improvements over the next five years. The CIP considersneeded improvements that support the assessment criteria as noted above.

The current comprehensive CIP includes over 400 projects with an estimated cost of approximately $530.6 million

dollars for the 5-Year period. The table below summarizes the total of programmed capital expenditures included the FY2016‐2020 Comprehensive Capital Improvement Plan by the Department of Public Works.


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Table 12. Capital Improvements Program Summary, FY 2016 2020

Infrastructure System Forecasted Program

Need (5 to 20-Year)

5-Year CIP Total Total Proposed Use of

Sales Tax Funding

Water $ 229,232,200.00 $ 119,802,200.00 $ 15,600,000.00Wastewater $ 393,935,725.00 $ 280,739,725.00 $ 4,500,000.00Stormwater (Drainage) $ 1,012,655,033.60 $ 54,149,157.50 $ 54,149,157.50Roads and Bridges $ 87,630,381.32 $ 75,938,965.32 $ 75,938,965.32Total $ 1,723,453,339.92 $ 530,630,047.82 $ 150,188,122.82

Water23%

Wastewater53%

Stormwater (Drainage)10%

Roads and Bridges14%

Breakdown of 5-Year CIP Total

Water Wastewater Stormwater (Drainage) Roads and Bridges

Jackson Master Plan Draft

Documents

Transcript of Jackson Master Plan Draft