6.2.
CC Regular Session
- Meeting Date:
- 02/10/2015
- By:
- Bruce Westby, Engineering/Public Works
Information
Title:
Public Hearing - Adopt Resolution #15-02-034 Ordering Plans and Specifications for IP 13-10; Garnet Street and 168th Avenue Reconstruction
Purpose/Background:
Purpose:
The purpose of this case is to conduct a Public Hearing and order preparation of final plans and specifications for proposed City Improvement Project #13-10, Garnet Street and 168th Avenue Reconstruction.
Background:
City of Ramsey Improvement Project 13-10 proposes to reconstruct two paved street segments including Garnet Street between 167th Street and the north plat line of Now & Then Estates, and 168th Avenue between Garnet Street and the west cul-de-sac. The segment of Garnet Street to be reconstructed measures approximately 1,350 feet in length, and the segment of 168th Avenue NW west of Garnet Street measures approximately 670 feet in length. The total length of these two street segments is approximately 2,020 linear feet, or 0.38 miles. A map showing the location and scope of the proposed improvements on these two streets is included in the attached Feasibility Report as Figure 1 of Appendix A.
Existing Conditions
Both streets have bituminous pavement and curb, and no storm sewer or public utilities exist under the streets. The streets were constructed in 1988 and have received one sealcoat application in 2006. Both streets are relatively flat and are not able to efficiently shed stormwater runoff, resulting in stormwater runoff pooling on the pavement for extended periods of time which strips oil from the pavement leading to accelerated degradation of the pavement. Both streets have a Pavement and Surface Evaluation Rating (PASER) of 1 and are therefore among the worst streets in the City in terms of pavement condition. In fact, large areas of Garnet Street are no longer paved so Public Work’s has been filling the non-paved areas with class 5 aggregate in an attempt to maintain the streets in passable condition. However, each spring when the ground thaws the street becomes extremely difficult to navigate and maintain due primarily to the poor underlying soils which become unstable when saturated with groundwater. Pictures showing the condition of these two streets are included in the Feasibility Report at the end of Appendix A.
Proposed Improvements
Subgrade corrections are proposed along both street segments to provide a uniform, stable subgrade base for the new pavement sections, thereby ensuring the new pavement sections can achieve their maximum life with minimal maintenance. The subgrade corrections are proposed to consist of excavating 3-feet of unsuitable subgrade materials and backfilling the void with clean imported select granular borrow. Per the adopted Special Assessments Policy, the cost to correct unsuitable subgrade soils is not an eligible special assessment cost so these costs will be paid in full with City funds. While the subgrade corrections have a significant cost, this will ensure the City will receive the maximum life from the reconstructed street while minimizing maintenance costs over the life of the street.
Both streets are proposed to be reconstructed to match the existing widths of 31-feet from back-of-curb to back-of-curb. However, concrete curb and gutter is proposed for both streets to better facilitate drainage and to protect the edges of the pavement. Storm sewer is also proposed to be constructed to better facilitate drainage.
The construction of 6-foot wide concrete sidewalks within City right-of-ways along the east side of Garnet Street and the north side of 168th Avenue is also being proposed. The new sidewalk will connect the existing 6-foot concrete sidewalk segment on the east side of Garnet Street that dead-ends south of 169th Lane NW to the existing sidewalk north of 167th Avenue. These sidewalks connect to the regional bituminous trail west of TH 47. Adding the proposed sidewalk segments will close a significant gap in existing pedestrian facilities in this developing area. A map showing the location of existing pedestrian facilities is included in the Feasibility Report as Figure 2 of Appendix A.
The Feasibility Report also explores costs to construct public utilities during street reconstruction for the following reasons.
For these reasons, staff proposes to construct 8-inch DIP watermain under both Garnet Street (stubs exist at both ends of the street segment to be reconstructed) and 168th Avenue, including 1” copper water service lines to each property. Staff also recommends constructing gravity sanitary sewer with this project for the same reasons noted above, again including 4” PVC sewer service lines to each property. Staff is only proposing to install one set of services to each property as there are too many unknowns regarding future lot splits to consider installing additional services at this time.
Storm sewer improvements will need to be looked at carefully during final design. The existing culvert under Garnet Street north of 168th Avenue is very shallow so the streets may need to be elevated by a foot or more in certain locations to allow the storm sewer system to function properly. The existing ditch and ponding area east of Garnet Street may also need to be regraded to increase capacity. The storm sewer design will be addressed with the Lower Rum River Watershed Management Organization during final design.
Public Input
On January 29th, a public information meeting was held at City Hall to solicit input from the property owners abutting this project prior to the Public Hearing. In attendance were 7 of the 12 property owners proposed to be assessed for the project. In general, the property owners support the project but questioned the need for utilities and sidewalks as proposed along the streets, and how the City planned to replace any trees that are either damaged or removed as a result of the project.
City utilities – Many property owners were concerned about whether the proposed assessments included costs for installing City utilities, and whether utility services were proposed to be stubbed to each property. They also asked what the costs would be to connect to City utilities during the project versus at a later date, and whether the costs could be deferred until a connection was made to the City utilities. Staff answered as many questions as possible during the meeting, but e-mail addresses were gathered from the attending property owners and staff provided responses via e-mail the following week.
Concrete sidewalks - Some property owners stated they would not use the sidewalk and questioned whether it should be constructed and whether they had to pay for it. Staff explained there would be no cost to them to construct the sidewalk as new sidewalks are not eligible assessment costs per the Special Assessments Policy. Staff also stressed that the purpose of the proposed sidewalk is to connect a gap in the existing pedestrian facilities that serve that area of the City, and that sidewalks and trail systems are intended to connect neighboring developments, not just to serve the adjacent properties.
Tree replacement plan – Some property owners were concerned they could lose trees or landscaping during construction and asked what the City would due in such an instance. Staff informed the property owners that at this time it is unknown whose trees might be impacted as plans have not yet been prepared, but that this topic would be addressed with Council before the project is let for bids. Based on past practice, staff recommends preparing final plans and identifying all tree removal areas, then staff can work with each impacted property owner to determine the best course of action for mitigate impacts to their trees and/or landscaping. If trees are small enough staff would first pursue relocation of the trees. However, if trees must be removed staff would work with each property owner to identify reasonable improvements that will mitigate the removal to the satisfaction of the property owner. This could include replacing each mature tree with two or more smaller trees outside the right-of-way or in the boulevard, or it could include other improvements of similar value. Again, Council will be asked to approve the overall tree replacement plan prior to letting the project for bids.
16851 Garnet Street – Several property owners questioned why 16851 Garnet Street is not proposed to be assessed with this project. This property was originally platted with the Now & Then Estates development but was later platted as part of the Brookfield 1st Addition development. Staff did not include this property in the original assessment roll since it is located in the Brookfield 1st development and is a much smaller lot than the others. Questions were also raised about why concrete C&G and sidewalk weren’t extended past this property. Staff at the meeting recalled that the developer of Brookfield 1st Addition had plans to purchase and subdivide all properties in Now & Then Estates so the permanent street improvements were stopped at the north end of Now & Then Estates, and a temporary bituminous pavement and curb section was extended to the end of the public utility installations. The developer’s plans eventually fell through and a permanent street section was never constructed. Staff attempted to determine if payments were made by this property for street and utility improvements but could not find such information. At this time, staff does not recommend adding this property to the assessment roll due to a lack of information on prior assessments/payments for streets and utilities, because this would require the public process to be started over again resulting in project delays, and because it would have no impact on the proposed assessments for the other property owners since their proposed assessments are not based on a percentage of the project costs.
The purpose of this case is to conduct a Public Hearing and order preparation of final plans and specifications for proposed City Improvement Project #13-10, Garnet Street and 168th Avenue Reconstruction.
Background:
City of Ramsey Improvement Project 13-10 proposes to reconstruct two paved street segments including Garnet Street between 167th Street and the north plat line of Now & Then Estates, and 168th Avenue between Garnet Street and the west cul-de-sac. The segment of Garnet Street to be reconstructed measures approximately 1,350 feet in length, and the segment of 168th Avenue NW west of Garnet Street measures approximately 670 feet in length. The total length of these two street segments is approximately 2,020 linear feet, or 0.38 miles. A map showing the location and scope of the proposed improvements on these two streets is included in the attached Feasibility Report as Figure 1 of Appendix A.
Existing Conditions
Both streets have bituminous pavement and curb, and no storm sewer or public utilities exist under the streets. The streets were constructed in 1988 and have received one sealcoat application in 2006. Both streets are relatively flat and are not able to efficiently shed stormwater runoff, resulting in stormwater runoff pooling on the pavement for extended periods of time which strips oil from the pavement leading to accelerated degradation of the pavement. Both streets have a Pavement and Surface Evaluation Rating (PASER) of 1 and are therefore among the worst streets in the City in terms of pavement condition. In fact, large areas of Garnet Street are no longer paved so Public Work’s has been filling the non-paved areas with class 5 aggregate in an attempt to maintain the streets in passable condition. However, each spring when the ground thaws the street becomes extremely difficult to navigate and maintain due primarily to the poor underlying soils which become unstable when saturated with groundwater. Pictures showing the condition of these two streets are included in the Feasibility Report at the end of Appendix A.
Proposed Improvements
Subgrade corrections are proposed along both street segments to provide a uniform, stable subgrade base for the new pavement sections, thereby ensuring the new pavement sections can achieve their maximum life with minimal maintenance. The subgrade corrections are proposed to consist of excavating 3-feet of unsuitable subgrade materials and backfilling the void with clean imported select granular borrow. Per the adopted Special Assessments Policy, the cost to correct unsuitable subgrade soils is not an eligible special assessment cost so these costs will be paid in full with City funds. While the subgrade corrections have a significant cost, this will ensure the City will receive the maximum life from the reconstructed street while minimizing maintenance costs over the life of the street.
Both streets are proposed to be reconstructed to match the existing widths of 31-feet from back-of-curb to back-of-curb. However, concrete curb and gutter is proposed for both streets to better facilitate drainage and to protect the edges of the pavement. Storm sewer is also proposed to be constructed to better facilitate drainage.
The construction of 6-foot wide concrete sidewalks within City right-of-ways along the east side of Garnet Street and the north side of 168th Avenue is also being proposed. The new sidewalk will connect the existing 6-foot concrete sidewalk segment on the east side of Garnet Street that dead-ends south of 169th Lane NW to the existing sidewalk north of 167th Avenue. These sidewalks connect to the regional bituminous trail west of TH 47. Adding the proposed sidewalk segments will close a significant gap in existing pedestrian facilities in this developing area. A map showing the location of existing pedestrian facilities is included in the Feasibility Report as Figure 2 of Appendix A.
The Feasibility Report also explores costs to construct public utilities during street reconstruction for the following reasons.
- Extending 8-inch ductile iron pipe (DIP) watermain under Garnet Street will benefit the City by allowing staff to maintain the water supply system more efficiently due to creating a looped (connected) system.
- Extending 8-inch DIP watermain under 168th Avenue will provide a looped water supply system for the Brookfield development after they extend their 8-inch DIP watermain to the west end of existing 168th Avenue.
- Looped systems allow smaller areas to be isolated during watermain maintenance activities, thereby requiring fewer properties to be taken out of service.
- Proposed street improvements have a design life of 60-years, and adjacent properties were developed over 20 years ago. As septic systems and wells begin to fail, requests to connect to City utilities may occur and if watermain is not installed with the project the street(s) would need to be reconstructed before their useful life is over.
- During the January 29th public information meeting numerous property owners voiced an interest in connecting to City utilities, either now or in the near future.
For these reasons, staff proposes to construct 8-inch DIP watermain under both Garnet Street (stubs exist at both ends of the street segment to be reconstructed) and 168th Avenue, including 1” copper water service lines to each property. Staff also recommends constructing gravity sanitary sewer with this project for the same reasons noted above, again including 4” PVC sewer service lines to each property. Staff is only proposing to install one set of services to each property as there are too many unknowns regarding future lot splits to consider installing additional services at this time.
Storm sewer improvements will need to be looked at carefully during final design. The existing culvert under Garnet Street north of 168th Avenue is very shallow so the streets may need to be elevated by a foot or more in certain locations to allow the storm sewer system to function properly. The existing ditch and ponding area east of Garnet Street may also need to be regraded to increase capacity. The storm sewer design will be addressed with the Lower Rum River Watershed Management Organization during final design.
Public Input
On January 29th, a public information meeting was held at City Hall to solicit input from the property owners abutting this project prior to the Public Hearing. In attendance were 7 of the 12 property owners proposed to be assessed for the project. In general, the property owners support the project but questioned the need for utilities and sidewalks as proposed along the streets, and how the City planned to replace any trees that are either damaged or removed as a result of the project.
City utilities – Many property owners were concerned about whether the proposed assessments included costs for installing City utilities, and whether utility services were proposed to be stubbed to each property. They also asked what the costs would be to connect to City utilities during the project versus at a later date, and whether the costs could be deferred until a connection was made to the City utilities. Staff answered as many questions as possible during the meeting, but e-mail addresses were gathered from the attending property owners and staff provided responses via e-mail the following week.
Concrete sidewalks - Some property owners stated they would not use the sidewalk and questioned whether it should be constructed and whether they had to pay for it. Staff explained there would be no cost to them to construct the sidewalk as new sidewalks are not eligible assessment costs per the Special Assessments Policy. Staff also stressed that the purpose of the proposed sidewalk is to connect a gap in the existing pedestrian facilities that serve that area of the City, and that sidewalks and trail systems are intended to connect neighboring developments, not just to serve the adjacent properties.
Tree replacement plan – Some property owners were concerned they could lose trees or landscaping during construction and asked what the City would due in such an instance. Staff informed the property owners that at this time it is unknown whose trees might be impacted as plans have not yet been prepared, but that this topic would be addressed with Council before the project is let for bids. Based on past practice, staff recommends preparing final plans and identifying all tree removal areas, then staff can work with each impacted property owner to determine the best course of action for mitigate impacts to their trees and/or landscaping. If trees are small enough staff would first pursue relocation of the trees. However, if trees must be removed staff would work with each property owner to identify reasonable improvements that will mitigate the removal to the satisfaction of the property owner. This could include replacing each mature tree with two or more smaller trees outside the right-of-way or in the boulevard, or it could include other improvements of similar value. Again, Council will be asked to approve the overall tree replacement plan prior to letting the project for bids.
16851 Garnet Street – Several property owners questioned why 16851 Garnet Street is not proposed to be assessed with this project. This property was originally platted with the Now & Then Estates development but was later platted as part of the Brookfield 1st Addition development. Staff did not include this property in the original assessment roll since it is located in the Brookfield 1st development and is a much smaller lot than the others. Questions were also raised about why concrete C&G and sidewalk weren’t extended past this property. Staff at the meeting recalled that the developer of Brookfield 1st Addition had plans to purchase and subdivide all properties in Now & Then Estates so the permanent street improvements were stopped at the north end of Now & Then Estates, and a temporary bituminous pavement and curb section was extended to the end of the public utility installations. The developer’s plans eventually fell through and a permanent street section was never constructed. Staff attempted to determine if payments were made by this property for street and utility improvements but could not find such information. At this time, staff does not recommend adding this property to the assessment roll due to a lack of information on prior assessments/payments for streets and utilities, because this would require the public process to be started over again resulting in project delays, and because it would have no impact on the proposed assessments for the other property owners since their proposed assessments are not based on a percentage of the project costs.
Notification:
All required Public Hearing Notices were mailed to the appropriate property owners and were published in the City’s official newspaper, the Anoka County Union Herald.
Observations/Alternatives:
Observations:
If property owners want to connect to City sewer and water with this project the 2015 rates and charges schedule includes trunk connection and lateral fees totaling $8,379 for connecting to City water, and $4,537 for connecting to City sewer. These fees do not include building permit fees, which cost roughly another $4,400. Staff recommends charging full rates for connecting to City sewer and water considering that one set of service stubs are proposed to be installed to each property line with this project, as well as the large expenditure the City is undertaking to construct the utilities ($441,000) today, for which only a small percentage will be recovered through fees in the future. If the properties subdivide in the future, the City will of course recover additional funds to help cover a portion of this expenditure.
Staff does plan to review our sewer and water connection fees to address future street reconstruction projects that propose to install new utilities to prevent the sewer and water funds from being depleted by such projects. None of the remaining street reconstruction projects in the 5-year CIP include public utility extensions so ample time should be available to address this issue in the future.
This project is necessary, cost-effective and feasible from an engineering standpoint, and can be constructed as proposed.
Alternatives:
Alternative Action #1 – Motion to adopt Resolution #15-02-034 ordering final plans and specifications for Improvement Project #13-10; Garnet Street and 168th Avenue Reconstruction, as proposed by staff.
Alternative Action #2 – Motion to adopt Resolution #15-02-034 ordering final plans and specifications for Improvement Project #13-10; Garnet Street and 168th Avenue Reconstruction, with the following modifications to staff’s proposed design: ____________________.
Alternative Action #3 – Motion to deny adoption of Resolution #15-02-034 at this time.
If property owners want to connect to City sewer and water with this project the 2015 rates and charges schedule includes trunk connection and lateral fees totaling $8,379 for connecting to City water, and $4,537 for connecting to City sewer. These fees do not include building permit fees, which cost roughly another $4,400. Staff recommends charging full rates for connecting to City sewer and water considering that one set of service stubs are proposed to be installed to each property line with this project, as well as the large expenditure the City is undertaking to construct the utilities ($441,000) today, for which only a small percentage will be recovered through fees in the future. If the properties subdivide in the future, the City will of course recover additional funds to help cover a portion of this expenditure.
Staff does plan to review our sewer and water connection fees to address future street reconstruction projects that propose to install new utilities to prevent the sewer and water funds from being depleted by such projects. None of the remaining street reconstruction projects in the 5-year CIP include public utility extensions so ample time should be available to address this issue in the future.
This project is necessary, cost-effective and feasible from an engineering standpoint, and can be constructed as proposed.
Alternatives:
Alternative Action #1 – Motion to adopt Resolution #15-02-034 ordering final plans and specifications for Improvement Project #13-10; Garnet Street and 168th Avenue Reconstruction, as proposed by staff.
Alternative Action #2 – Motion to adopt Resolution #15-02-034 ordering final plans and specifications for Improvement Project #13-10; Garnet Street and 168th Avenue Reconstruction, with the following modifications to staff’s proposed design: ____________________.
Alternative Action #3 – Motion to deny adoption of Resolution #15-02-034 at this time.
Funding Source:
The Feasibility Report was completed in-house as part of staff’s regular duties. The Geotechnical Evaluation Report completed by NTI had a cost of $2,525, which is included in the indirect costs.
The engineer’s opinion of probable costs per street segment, including all costs for surface (streets), stormwater, water, and sanitary sewer, is $1,125,000 for Garnet Street and $550,000 for 168th Avenue, which totals $1,675,000. Estimated costs include 10% contingency costs plus 25% indirect costs for administrative, engineering, finance and legal costs. Appendix B of the Feasibility Report includes a detailed cost summary.
This improvement project, which is included in the City’s 5-year Capital Improvement Plan for construction in 2015, can be funded using a combination of special assessments to benefiting properties, and sewer, water and stormwater utility funds. The issuance of Street Reconstruction Bonds will fund the surface (street) improvements as outlined in the 2015-2019 CIP as discussed and approved in a previous case.
Per the adopted Special Assessments Policy, the City may consider assessing up to 25% of applicable street reconstruction project costs. However, based on the existing large lot sizes (2+ acres) and street frontages (200+ linear feet) along these streets, the preliminary special assessment proposed in the Feasibility Report is set at $6,500 per lot. This equates to about 5.4% of all eligible surface (street) improvement costs. This totals $78,000 for the 12 single-family residential property owners with direct access onto the improved street segments. The funding section of the Feasibility Report includes more detail on the proposed assessments.
The table below shows the estimated project costs and funding sources per improvement category.
The table below shows the estimated assessment amounts based on 10 and 5 year terms, a 3.9% interest rate, and an assessment hearing date of October 13, 2015 (444 days in first year).
The engineer’s opinion of probable costs per street segment, including all costs for surface (streets), stormwater, water, and sanitary sewer, is $1,125,000 for Garnet Street and $550,000 for 168th Avenue, which totals $1,675,000. Estimated costs include 10% contingency costs plus 25% indirect costs for administrative, engineering, finance and legal costs. Appendix B of the Feasibility Report includes a detailed cost summary.
This improvement project, which is included in the City’s 5-year Capital Improvement Plan for construction in 2015, can be funded using a combination of special assessments to benefiting properties, and sewer, water and stormwater utility funds. The issuance of Street Reconstruction Bonds will fund the surface (street) improvements as outlined in the 2015-2019 CIP as discussed and approved in a previous case.
Per the adopted Special Assessments Policy, the City may consider assessing up to 25% of applicable street reconstruction project costs. However, based on the existing large lot sizes (2+ acres) and street frontages (200+ linear feet) along these streets, the preliminary special assessment proposed in the Feasibility Report is set at $6,500 per lot. This equates to about 5.4% of all eligible surface (street) improvement costs. This totals $78,000 for the 12 single-family residential property owners with direct access onto the improved street segments. The funding section of the Feasibility Report includes more detail on the proposed assessments.
The table below shows the estimated project costs and funding sources per improvement category.
| Improvement Category | Assessments | City Funds | Total |
| Surface | $78,000 | $958,000 | $1,036,000 |
| Storm Sewer | – | $198,000 | $198,000 |
| Water Main | – | $271,000 | $271,000 |
| Sanitary Sewer | – | $170,000 | $170,000 |
| Totals | $78,000 | $1,597,000 | $1,675,000 |
The table below shows the estimated assessment amounts based on 10 and 5 year terms, a 3.9% interest rate, and an assessment hearing date of October 13, 2015 (444 days in first year).
| IP #13-10 Estimated Special Assessments 10 - Year Term |
||||
| 3.900% | Pay-off | |||
| Year | Principal Payment | Interest Payment | Total Payment | Balance |
| 6500.00 | ||||
| 2016 | 650.00 | 308.37 | 958.37 | 5850.00 |
| 2017 | 650.00 | 228.15 | 878.15 | 5200.00 |
| 2018 | 650.00 | 202.80 | 852.80 | 4550.00 |
| 2019 | 650.00 | 177.45 | 827.45 | 3900.00 |
| 2020 | 650.00 | 152.10 | 802.10 | 3250.00 |
| 2021 | 650.00 | 126.75 | 776.75 | 2600.00 |
| 2022 | 650.00 | 101.40 | 751.40 | 1950.00 |
| 2023 | 650.00 | 76.05 | 726.05 | 1300.00 |
| 2024 | 650.00 | 50.70 | 700.70 | 650.00 |
| 2025 | 650.00 | 25.35 | 675.35 | 0.00 |
| Total | $ 6,500.00 | $ 1,449.12 | $ 7,949.12 | |
| IP #13-10 Estimated Special Assessments 5 - Year Term |
||||
| 3.900% | Pay-off | |||
| Year | Principal Payment | Interest Payment | Total Payment | Balance |
| 6500.00 | ||||
| 2016 | 1300.00 | 308.37 | 1608.37 | 5200.00 |
| 2017 | 1300.00 | 202.80 | 1502.80 | 3900.00 |
| 2018 | 1300.00 | 152.10 | 1452.10 | 2600.00 |
| 2019 | 1300.00 | 101.40 | 1401.40 | 1300.00 |
| 2020 | 1300.00 | 50.70 | 1350.70 | 0.00 |
| Total | $ 6,500.00 | $ 815.41 | $ 7,315.37 | |
Recommendation:
Staff recommends Alternative Action #1 to ensure this project can be completed in 2015 thereby preventing the City from falling further behind on its long-term street maintenance program.
Staff supports Alternative Action #2 if Council wishes to make minor modifications to the project.
Staff does not support Alternative Action #3 due to the potential to jeopardize delivery of this project in 2015.
Staff supports Alternative Action #2 if Council wishes to make minor modifications to the project.
Staff does not support Alternative Action #3 due to the potential to jeopardize delivery of this project in 2015.
Action:
Approve or deny adoption of Resolution #15-02-034 ordering final plans and specifications for Improvement Project #13-10; Garnet Street and 168th Avenue Reconstruction.
Attachments
Form Review
| Inbox | Reviewed By | Date |
|---|---|---|
| Kurt Ulrich | Kurt Ulrich | 02/05/2015 02:57 PM |
- Form Started By:
- Bruce Westby
- Started On:
- 02/02/2015 09:35 AM
- Final Approval Date:
- 02/05/2015