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Home My WebLink AboutCity/County Planning Board Minutes 12.11.1980 /'■ /'1 LAUREL-YELLOWSTONE CITY - COUNTY PLANNING BOARD LAUREL, MONTANA 59044 December 11, 1980 Meeting called to order by John Hawley Smith, President, with the following members present: John Hawley Smith, President (City Rep.) Mary McCormick (City Rep.) Ed LaPrath (County Rep.) Gerald Shay, Member at Large James Seaton (County Rep.) Bus Roberts (City Rep.) James Straw (County Rep.) Members absent: R. M. Williams, Vice Pres. (County Rep.) Otto J. Preikszas, Exec. Sec. (City Rep.) Kenneth Christian (County Rep.) Tom Bradley (City Rep.) Also present: John MacMartin, Cumin Assoc., Billings Bill Nyman John Nyman Dennis Harriman Minutes approved as sent out. Bills approved for payment: Administrative Services $200.00; Cumin Assoc. $3,000.00 Advisory Services October, November, December, 1980. SIGNS: John MacMartin handed out copies of Billings' sign ordinance. Short discussion of whether or not the Billings ordinance would be objectionable to Laurel. Mr. Harriman stated he thought that it was a fair code. Mr. Harriman gave his background. He has helped do ordinances in Great Falls, Rapid City, Denver, and other communities. He has also worked on various beautification projects. Mr. Harriman showed pictures of signs that would not be allowed under the Billings ordinance. Discussion of good and bad signs and also discussion of Billings' ordinance. Department Heads will receive copies of the Billings ordinance for review and comment. FmHA "601" COMPLIANCE PLANNING final copy presented by John MacMartin. The addendum was approved by the City Council on December 2, 1980. ANNEXATIONS: John MacMartin states we should be thinking about annexation policy. Discussion on annexation costs. John explained why some costs are high and surveys have to be redone. Respectfully submitted, Gerald Shay, Acting Secretary GS /pj 4 ,, UNITED STATES DEPARTMENT OF AGRICULTURE FARMERS HOME ADMINISTRATION SECTION 601 COMPLIANCE PLANNING ADDENDUM FOR LAUREL, MONTANA November 1980 prepared by L. JOHN MAC MARTIN Cumin Associates SUMMARY The attached document has been completed to fulfill the planning requirements of the FmHA 601 program. It is designed as an addendum or update to the Comprehensive Plan and Transportation Plan of Laurel. As such, the reader or user of this addendum will need to refer to noted sections of the plans for a complete, detailed description of most of the items contained herein. The information that refers to population impacts on Laurel from both the workers associated with the transportation of coal and the total population increase is found on pages two through seven. Tables 1 and 2 on page 5 delineate information concerning the total number of workers at the Burlington Northern facilities in Laurel whose jobs are directly related to coal. Table 3 on page seven delineates the projected population total for Laurel and its planning area; these totals include the coal related worker. Pages seven through 26 describe the various changes that have occurred to the Community Facilities in the last few years; it also describes the needed additions of land, renovation of the existing infrastructure, the capital equipment needs, and projected building expansions over the next five years. Pages 27 and 28 describe the provision of Human Services in Laurel. Pages 28 and 29 projects the various types of housing that will be needed during the next five years. Pages 29 through 33 discuss the financial resources available to the govern- ing bodies to fund the provision of services as well as the projected expan- sion of the services. It points out that the major source of funds for the City is the property tax which is directly tied to the mill levy; further, it points out the inflexibility of the mill levy and now it hasn't kept up with inflation. Table 10 on page 31 contains those site acquisition and develop- ment projects that are deemed necessary by the governing bodies during the next i s n five years. The five attachments contain financial summaries of each of the units of government for specific fiscal years. 7 ii n This addendum to the Laurel Planning Data Book and Comprehensive Plan (LCP) has been completed to fulfill the compliance planning requirements of the Farmers Home Administration (FmHA). Specifically, the points addressed in this addendum are contained in the FmHA 601 criteria under 1948.82 as published in the June 19, 1979 Federal Register. There are ten items listed under 1948.82 and they were used as the scope of work for the contract with FmHA and are here included. The plan submitted for FmHA approval should contain: (1) The present level of coal or uranium production, processing, or transportation within the approved designated area covered by the plan; (2) The anticipated level of coal or uranium production, processing, or transportation in each of the next five calendar years within the area covered by the plan; (3) A brief description of the socio- economic impacts that have occurred during the two most recent calendar years in the ap- proved designated area covered by the plan; (4) A brief description of the socio- economic impacts that are ex- pected to occur in the approved designated area covered by the plan within each of the next five calendar years; (5) The anticipated number of new employees expected to be hired in coal or uranium development activities in each of the next five years within the approved designated area covered by the plan; (6) Available financial resources and federal programs that may be applied to meeting the needs of the approved designated area including but not limited to the following: (i) The expected amount of State assistance and State expendi- tures in the approved designated area covered by the plan which will be used for impact assistance in the next five years; -1- (ii) The amount of tax revenues expected to accrue to local governments serving the approved designated area covered by . the plan in each of the next five years due to increased economic activities which have occurred since the year prior to designation or are expected to occur as a result of coal and uranium development activity; (iii) Sources and amount of assistance State and local govern- ments are now receiving or are expected to receive from persons for the provision of housing and public facility and services; and (iv) Existing budget surplus at the State and local level. (7) The specific needs of the area covered by the plan as to the number of housing units now needed and the number that are expect- ed to be needed in each of the next five years, and /or the number and type of public facilities and services now needed or expected to be needed in the next five years; (8) The type and quantity of real property now needed or expected to be needed in the next five years for the construction of public facilities and /or housing and /or in the provisions of public services; (9) Proposed method of acquisition for each site to be acquired by the State or local governments; and (10) An estimate of assistance that will be necessary under this sec- tion and /or other FmHA or Federal programs for the development of the site. Laurel is a community, population 6,000, located along the Yellow- stone River in Yellowstone County about 20 miles west of Billings, the largest city in the state. The area is a focal point for all major forms of transportation in the regional trade area. The economy as well as the physical'growth of these two cities are closely related and are considered as a single statistical reporting unit. The economic base, as defined by the Montana State Employment Security Division and the Montana Business Quarterly is well diversified and not dependent upon just a single sector. The 1970s may be described as an era of strong growth for the area economy. Laurel is tied to this strong growth in a number of ways and also con- tributes very substantially to it. Laurel, as pointed out in the LCP, in some respects, acts as a bedroom community to Billings with residents of -2- 4 Laurel commuting to Billings to work and vice versa. See Chapter Four, the Socio- Economic Element, of the LCP for a detailed discussion. Laurel's contribution to the area's bullish economy comes from several areas but the one that this Addendum is concerned with is the contribution of the Burlington Northern Railroad and its association with the transportation of coal. Laurel owes its beginning and to some extent its steady growth to the railroad interests. Laurel originated in 1882 as the Northern Pacific (N.P.) station "Carlton" and it was noted in the N.P. guidebook by a single sentence: "Passing the unimportant station of Carlton eighteen miles west of Billings, the next stopping place is Park City." In 1883 the name was changed to Laurel. Laurel is an east -west terminal division point of the Burlington Northern Railroad and it is one of the largest freight yards in the West, the largest between St.Paul and Seattle. In 1976 these terminal facilities were used to make up 12 freight trains a day which were sent to all points of the vast Burlington Northern System. Added to the original yards were the Chemetron Welding Plant, Union Tank Car Company, and the Coal Car repair facilities. Today, thanks to the growth impetus from the railroad, Laurel is the largest city in the state that - is not a county seat. As is evident from a review of the ten points of the 601 criteria, the information that the FmHA compliance plan should address is the mining, pro- cessing, or transportation of coal. In Laurel, or for that matter Yellow- stone County, the direct relationship is in the area of transportation. Bur- lington Northern, as previously referenced, has operated a coal car mainten- ance facility in the Laurel rail yards since early in 1975. That facility and its related support groups within the railroad's operation have had estimates of close to 500 total workers being directly associated with the • -3- 4 ••• transportation of coal during various periods between 1975 and 1979. This scenario of growth in employment was projected by many to continue to increase; however, in September 1979 this scenario was severely redefined by the layoff of 200 workers at Laurel. This layoff consisted of 150 from the coal car shop and 50 other general mechanical positions from throughout the Laurel complex. Burlington Northern officials indicated that the layoffs occurred because their two -year commitment to recondition the fleet of coal cars in service had been fulfilled. Specifically, what that meant was that in 1975 when hauling coal was undertaken with renewed interest in order to help solve the energy demands of the nation, the fleet of coal hauling cars was found to be in generally poor condition. Burlington Northern invested 4.5 million dol- lars in Laurel to alter an existing shop to epeditiously provide maintenance and renovation to the fleet of coal cars. This renovation was part of a commit- ment that had been made to the coal industry to insure dependable, functional equipment to transport the coal. This extensive renovation program occurred between 1977 and 1979. Thus, in September 1979, the Burlington Northern re- leased the extra employees that had been hired to complete this renovation; however, a significant staff, larger than existed before 1977, has been re- tained to continue the periodic, routine maintenance on the coal car fleet. Table 1 contains information which is pertinent to the employment of workers in various departments as of May 15, 1979. Further, it indicates the number of workers directly related to coal. -4- Table 1 SELECTED EMPLOYMENT BURLINGTON NORTHERN LAUREL, MT Employees Department Employees Related to Coal Coal Car Shop 277 277 Heavy and Light Repair Shop 317 79 Roundhouse 29 7 Materials 44 11 Operations 109 27 Rail Welding Plant 52 21 Totals 828 422 Source: Letter from John Willard, Regional Manager of Public Relations, Burlington Northern, Billings, MT, May 15, 1979. In comparison to these figures, Mr. Willard supplied the Montana Department of Community Affairs with the information contained in Table 2 on February 11, 1980. Table 2 SELECTED EMPLOYMENT Employees Department Related to Coal Operating 6 Maintenance of right -of -way 0 Mechanical (Coal Car Shop) 121 Supervisory 1 Total 128 Source: Letter from John Willard, Regional Manager of Public Relations, Burlington Northern, Billings, MT, February 11, 1980. -5- 4 •'■ The difference between these totals is 294 and represents what could be a much larger layoff than the one reported. However, in analyzing the data contained in the tables, it is evident that the 1979 statistics are more comprehensive in terms of the departments reviewed and the relationship that each job or employee has to the transportation of coal. Therefore, the total number of employees whose jobs are directly related to coal may be higher than that shown in Table 2 (i.e. note the lack of inclusion of em- ployees from the welded rail plant). In terms of future activities in the Laurel area, the only known pro- jection shows the number of west -bound coal haul trains through Laurel in- creasing in the next few years by one - third. Burlington Northern has not provided any insight into what may or may not be in their corporate plans for Laurel in the next five years. Laurel may see several more severe fluc- tuations in employment due to coal depending upon the national attitude, con- sumption of coal, and the number and timing of new export type strip mines. One rumor attributed to a corporate officer indicated that the coal car re- pair facility would be doubled in size and capacity in order to serve the forecasted development of West -Coast markets for western coal. The rail- road has played a key role in the development and economic prosperity of Laurel since 1882 and it will probably continue to do so for many years to come. The growth of Laurel due to railroad is impossible to quantify for the previously stated reasons. However, the growth of Laurel is project- ed to continue and the railroad is a key component of that growth. The growth of Laurel was projected in the original LCP. Laurel's position as a key component of the economy of the Yellowstone County was recogniz- ed as well as the key components of Laurel's economy. Several of the firms that contribute to the economy are in Laurel due to coal but because -6- of secondary effects. The firms have either located in Laurel or expanded their operation due primarily from the increase in business due to the railroad and the coal mining in Eastern Montana. These businesses include Component Structures, Boise Cascade, Emmer Lumber, Mossmain Materials Company, and Mossmain Industries. Table 3 contains a summary of selected portions of the projected population for Laurel and the planning area immediately surrounding the City. Table 3 SELECTED POPULATION PROJECTIONS 1970 1975 1980 1985 Laurel 4,454 5,945 7,968 10,696 Planning area 1,139 1,543 2,921 2,954 Total 5,593 7,488 10,889 13,650 Source: Laurel Planning Data Book and Comprehensive Plan, Socio- Economic Table 1, p. 4 -7 These population figures are those currently being used by the City in its planning process; further, they are the figures used by the City in determining its needs for the ensuing five year period. COMMUNITY FACILITIES Since the original Planning Data Book and Comprehensive Plan was com- pleted in 1979 several construction projects have been undertaken by the City through a variety of different fundings sources. These projects have upgraded many of the comments contained in the LCP concerning the community facilities. These sections will provide an update to the various sections -7- of the LCP but the reader will still need to reference the original docu- ment for a complete discussion about the facilities. Water System The water plant has had a series of construction improvements which have increased its output and efficiency; in addition, the plant has been brought into compliance with several deficiencies that were cited by the EPA. The water usage increased in 1979 to 1,100,222,000 gallons. The plant itself has been modified through a series of pump changes and fil- tration system changes and currently has a treatment capacity of ten million gallons per day (mgpd), this is an increase of six mgpd. One of the major changes in the plant to achieve this increased capacity was the changed filtration system. The new system is a mixed media filtration system; the filters are cleaned by pumping the backwash into a retention pond for evaporation and /or recycling back to the intake portion of the plant. This practice is one of the changes required by the EPA for zero discharge back to the River. In addition, there were separate pumps within the plant to serve the B.N. railroad yards with treated water. The water was pumped to an old water tower for B.N.'s internal water pressure. The water tower was elim- inated and the pumps taken out of the water plant. Currently the B.N. fac- ilities are provided water from a new ten -inch asbestos - cement (AC) water main installed in Railroad Street. Also, an older, deteriorating, undersized, cast -iron line in 3rd Avenue was replaced with an eight -inch AC line. Fin- ally, the City now has two pressure zones in its water system. The high pressure zone currently serves about 50 homes and has made lots previously platted more easily served by the municipal water system due to the elevation. The plant itself needs to have an additional four pumps replaced at a cost of about $64,000.00. The settling basin needs to be resurfaced to insure - 8- its continued operation; the cost would be about $75,000.00. Also, the win- dows in the plant should be replaced with the replacements being designed for energy conservation. The water maintenance department as well as the distribution system also have a detailed lists of needs that are essential to the functioning of the water system. The necessary line replacements are indicated on Table 4. Table 4 WATER DISTRIBUTION NEEDS Description Cost Replace water lines in 6th Avenue from West Main to West 7th Street 3000 feet 8 -inch pipe $162,000.00 Replace water line in East 5th Street from 1st Avenue to Wyoming Avenue. 2000 feet, eight -inch pipe 108,000.00 Replace water lines in 1st Avenue South and South 4th Street. 1500 feet, 12 -inch pipe 90,000.00 Replace water lines in Main Street from 1st Avenue to 5th Avenue 2200 feet, 12 -inch pipe 132,000.00 Replace water lines in South 4th Street from 1st Avenue to Durland Avenue 1800 feet, 8 -inch pipe 108,000.00 Replace water lines in Elm Avenue from East 5th Street to East 6th Street 400 feet, 8 -inch pipe 21,600.00 Replace water lines in East 1st Street from 1st Avenue to Pennsylvania Avenue 1300 feet, 8 -inch pipe 70,200.00 Replace water lines in Washington Avenue from East Main Street to East 1st Street 300 feet, 6 -inch pipe 16,200.00 -9- Replace water lines in Ohio Avenue from East Main Street to East 1st Street. 300 feet, 6 -inch pipe 16,200.00 Replace water lines in West 7th from 1st Avenue to 7th Avenue. 2300 feet, 8 -inch pipe 124,200.00 Upper Reservoir Approximately 1.5 miles of 16 -inch line installed from the new pressure station to the reservoir 356,400.00 Acquisition of five acres of ground for reservoir 50,000.00 Utility easement for the location of the lines 15,000.00 Construction of a one - million gallon buried reservoir 500,000.00 Source: Laurel Public Works Department September 1980 The vast majority of these lines will utilize the asbestos cement lines to replace old, deteriorated cast -iron pipe or pipe that is undersized and will not carry the necessary flows. Sanitary Sewer System There have been only two major improvements to the sewer system in Laurel since 1979. The first involved the replacement of the main trunk line that runs down the alley parallel and north of Main Street from Alder Avenue to 5th Avenue. The old line was vitrified clay and allowed too much infiltration; the replacement line was PVC pipe and was installed through funds from EPA designed to reduce inflows and infiltration of the ground- water. The second project was a major new construction program which in- volved the installation of a new trunk line extension that was designed -10- to serve the same area of town as the new water pressure zone. The new line is designed to serve all of the sewer lines north of 7th Street and relieve all of the overloaded sewer lines to the south of 7th Street. The major improvement left that is required for the system by the EPA is the conversion of the plant from primary treatment to secondary treatment. (See the original LCP community facilities section) Currently, the facility plans are under review by the EPA and construction should be initiated once funding is obtained. The FmHA 601 program was used by the City to purchase 6.5 acres of land that was required for the plant expansion. This acquisition of land was crucial to the City due to the fact that the EPA will not participate in the acquisition of land; thus, the FmHA 601 share saved the taxpayers of the City a considerable sum of money. The public works department of the City is responsible for the main- tenance of the water lines, the sewer lines, the parks, ,the streets, as well as the landfill. Table 5 indicates the facility needs of the public works department during the next five years in order that the efficient operation of the system is continued. Table 5. PUBLIC WORKS DEPARTMENT FACILITY NEEDS Description Cost One flatbed truck with a 4000 pound crane mounted on the rear with stabilizing out - riggers equipped with remote control. $50,000.00 Three, two ton dump trucks with hoists, boxes, and snow -plows 105,000.00 Two, one -half ton pickups 20,000.00 A tractor with mower 10,000.00 Specialized equipment for use in the shop 8,000.00 -11- A 6000 square foot metal shop building with concrete floor Acquisition of an additional block of land for expansion of the City Shop, the land would be located adjacent to the existing City Shop area 10,000.00 per acre Source: Laurel Public Works Department October, 1980 Storm Sewer The city of Laurel is currently using FmHA 601 planning funds for utility system mapping and planning. One of the key features of this program is that the product will be used to aid in the design of an overall storm sewer system. This storm sewer system design should identify drainage ways, the necessary right -of -way, and how to upgrade several existing yet antiquated components of the current storm sewer system. The individual components of this system are not yet known, however, the study will be forwarded as an addendum to this 601 update as it is completed. Solid Waste The Laurel solid waste disposal system is one of the most simple systems that is operated in the State of Montana. (See pages 3 -16 through 3 -19 of the LCP). The needs of the City for the operation of this system are twofold: the first is to acquire additional land for the landfill and the second is to add more equipment to serve the residents of the City as well as land- fill maintenance as required by the State Department of Health and Environmental Sciences. The land question was addressed in the first FmHA State Investment Strategy and the necessary paperwork to obtain a firm lease is still being pursued. Table 6 details the equipment needs of the City that will be re- quired to functionally operate the landfill operation. -12- Table 6 SOLID WASTE CAPITOL EQUIPMENT NEEDS Description Cost Landfill Compactor $160,000.00 Land Scraper 4,000.00 A D -7 or DT 20 Crawler 150,000.00 A rapid rail garbage truck 70,000.00 Source: Public Works Department City of Laurel October 1980 Transportation The transportation needs of the City have been previously detailed in the Laurel Transportation Study and the LCP. Both of these documents have been filed with and conditionally accepted by the administrators of the FmHA 601 program. For a complete description of ;the transportation facilities of the City, the user of this update is directed to those two documents. Table 7 contains a detailed, prioritized list of the improvements required over the next 20 years to provide a functional systems of streets to serve the future residents of the City. (Note: the socio- economic section detailed that the growth of Laurel depends upon the railroad and the expansion of the coal industry.) The existing State Investment Strategy already lists the planning of two of the prioritized item found in the following table. In addition, Table 7 is also found on pages 5 -7 through 5 -11 of the LCP. -13- PIN Table 7 TRANSPORTATION SYSTEM IMPROVEMENTS PRIORITY 1: Prepare engineering feasibility studies and preliminary designs for reconstruction of the First Avenue Underpass under the Burlington Northern Railroad Tracks and for modi- fications to the West Laurel Interchange to allow traffic movement to and from the East. A. Engineering feasibility and preliminary design: First Avenue Underpass $50,000 B. Engineering feasibility and preliminary design: 1 -90 West Laurel Interchange modifications 10,000 Total $60,000 PRIORITY 2: Conduct preliminary engineering studies and secure ROW for proposed Westside (North - South) Arterial. Preliminary Design $20,000 Reserve ROW - Total $20,000 PRIORITY 3: Channelize First Avenue and Main and First Avenue and First Street Intersections and Implement Central Area Parking Plan A. Rechannelize First Avenue and Main $ 5,000 B. Channelize First Avenue and First Street 3,500 C. Central Area Parking Program 11,500 Subtotal $20,000 D. Engineering and contingencies 3,000 Total $23,000 PRIORITY 4: Complete construction of 8th Avenue as a Major Collector Street (two lanes plus parking on 44' paved section) between Main Street and 12th Street (1.0 mile). A. Drainage structures $50,000 B. Curb, gutter, sidewalk 61,000 C. Grading and pavement 97,000 Total $208,000 -14- PRIORITY 5: Reconstruct 5th Avenue including the grade crossing of the Burlington Northern Railroad tracks, between Main Street and Railroad Street (36 -ft. wide curb -to -curb minor collector street; no parking; 700 feet long). A. Drainage structures (Italian Ditch) $22,000 B. Curb, gutter and sidewalks 9,000 C. Pavement 26,000 D. Rubber Planking at tracks 8,000 E. Relocate Crossing Gates and Flashers 5,000 Sub -total $70,000 F. Engineering and Contingencies 10,000 Total $80,000 PRIORITY 6: Construct Maryland Lane as a Major Collector Street (two lanes plus parking on 44 -ft. paved section) between Washington and Alder Streets (600 ft.). Reconstruct Maryland to Major Collector Standards between First Avenue and Washington (2000 ft.) A. Drainage structures $20,000 B. Curb, gutter, and sidewalks 32,000 C. Grading and paving 68,000 Total $120,000 PRIORITY 7: Construct new First Avenue Underpass under the Burlington Northern Railroad Tracks. A. Drainage structures $ 45,000 B. New Railroad Bridge 1,750,000 C. Relocate RR Tracks 250,000 D. Pave 1st Avenue 890,000 E. Right -of -way 75,000 Sub- total $ 3,010,000 F. Engineering and contingencies 330,000 Total $ 3,340,000 -15- PRIORITY 8: Reconstruct West Laurel Interchange with I -90 to allow for traffic movements to and from the east. A. Westbound Off -ramp Bridge over Railroad Tracks $300,000 B. Remove existing eastbound Off -ramp 15,000 C. Construct new eastbound Off -ramp and new eastbound On -ramp 140,000 D. Construct widened approaches to the ramp from Main Street 60,000 Sub -total $515,000 E. Design Engineering and Contingencies 77,000 Total $592,000 PRIORITY 9: Construct Westside (north -side) Arterial (four lanes plus left -turn median; no parking; 64 feet curb -to -curb width on 100 -ft. right -of -way) between Main Street and Langve Subdivision approximately 1.5 miles north of Main Street A. Drainage and structures $ 75,000 B. Grading and Paving 355,000 C. Curb, gutter and sidewalk 90,000 Sub -total $520,000 D. Right -of -way acquisition 100,000 E. Engineering and contingencies 93,000 Total $713,000 PRIORITY 10: Construct Alder Avenue as a Major Collector street (two lanes plus parking on 44 -ft. paved section; 80 -ft. ROW) between Main Street and Ridge Drive (3800 ft.) A. Drainage structures $ 32,000 B. Grading and Paving 95,000 C. Curb, gutter and sidewalk 54,000 Sub -total $181,000 D. Engineering and Contingencies 29,000 Total $210,000 -16- n PRIORITY 11: Widen and improve Main Street from the Westside Arterial to East Laurel Interchange Phase 1: Westside Arterial to 8th Avenue (1700') (4 -lane arterial; no parking) A. Curb, gutter and sidewalk $ 20,000 B. Pavement 130,000 Phase 2: 8th Avenue to Alder Avenue (1.0 mile) (4 -lane arterial with parking) A. Curb, gutter sidewalks 18,000 B. Pavement 175,000 Phase 3: Alder Avenue to East Laurel Interchange (2 lanes plus shoulders) A. Pavement 254,000 Sub -total $597,000 B. Engineering and Contingencies 90,000 Total $687,000 PRIORITY 12: Construct Maryland Lane as a Major Collector Street (two lanes plus parking on 44 -ft. paved section) from 7th Avenue west to 19th Avenue (Golf Course Road). A. Drainage structures $ 22,000 B. Curb, gutter, sidewalks 38,000 C. Grading and Pavement 95,000 Sub -total $155,000 D. Engineering and Contingencies 23,000 Total $178,000 PRIORITY 13: Construct Laurel Airport Road as an Arterial Street (2 lanes plus 10 -ft. shoulders) from First Avenue (State Highway 532) to State Highway 305 (72nd Street West) 3.6 miles). A. Drainage structures $ 90,000 B. Grading and Pavement 720,000 C. Engineering and Contingencies 120,000 $930,000 -17- n Priority 14: Construct 12th Street as a Minor Collector Street (2 lanes plus parking on 44 -ft. paved section) from 8th Avenue east to Montana Meadows Subdivision. Phase 1: 8th Avenue to Alder Avenue (at Ridge Drive) (1.0 mile) A. Right -of -way $150,000 B. Grading and Pavement 165,000 C. Curb, gutter, sidewalk 60,000 Sub -total $375,000 Phase 2: Alder Avenue to Yard Office Road (1.0 mile) A. Paving $120,000 Phase 3: Yard Office Road to Main Street (U.S. 10 and 212) (1.0 mile) A. Paving (collector; no parking) $155,000 B. Curb, gutter and sidewalk 60,000 Sub -total $215,000 C. Engineering and Contingencies 105,000 Total $815,000 PRIORITY 15: Construct Alder Avenue as a Major Collector Street (2 lanes plus parking on 44 -ft. paved section) from Ridge Drive north to the Laurel Airport Road (1.1 mile) A. Drainage structures $ 70,000 B. Grading and Paving 235,000 C. Curb, gutter and sidewalks 65,000 Sub -total $370,000 D. Engineering and Contingencies 55,000 Total $425,000 PRIORITY 16: Widen U.S. Highway 212 and 310 to 4 -lane Arterial standards from the Main Laurel inter- change to the Yellowstone- Carbon County line (3.3 miles) A. Right -of -way $ 250,000 -18- B. Structures 2,500,000 C. Grading and Paving 790,000 Sub -total $3,540,000 D. Engineering and Contingencies 530,000 Total $4,070,000 PRIORITY 17: Construct Yard Office Road - Strauch Road Arterial from 1 -90 north to Laurel Airport Road (2.0 miles) Phase 1: Railroad Overpass A. Structure $1,750,000 B. Paving (1200') 50,000 Phase 2: Arterial from Main Street to Airport Road A. Drainage Structures 40,000 B. Grading and Pavement 320,000 Phase 3: Strauch Road - I -90 Interchange A. Right -of -way 50,000 B. Structures 1,500,000 C. Paving 60,000 Sub -total $3,770,000 D. Engineering and Contingencies 565,000 Total $4,335,000 Total of all projects $16,800,000 In addition to the system improvements required for the streets in the City there are also improvements required to the airport. Currently, the Airport Board is in the process of completing a master plan to guide the development of the airport for the next 20 years. That document is in the review, modification, and approval stage by the FAA. Once it has received the approval of the FAA, the master plan could be submitted to the FmHA as an addendum to this 601 compliance plan. -19- Police The Law Enforcement in the City of Laurel is under the auspices of the City of Laurel Police Department; they assist and are assisted by a Deputy from the Yellowstone County Sheriff's office in areas of mutual concern. The Police Department is located at 215 West First Street in Laurel. The Department has a membership of eight officers, one Chief of Police, and four dispatchers. In addition there are two part -time dispatchers, a volunteer force, and an auxiliary police force. All of the regular officers either have or are scheduled to attend a course in basic law enforcement at a police academy. The Police Department manages three eight -hour shifts. Basically there is one officer on duty, as well as one dispatcher (the dispatchers also function as clerks). On weekend evenings there are three officers on duty. In addition, the Yellowstone County Deputy is occasionally on patrol at night. The City Police Department has some of the conventional police equipment and their cars are similarly equipped. The Department has three marked cars; a 1977, 1978, and 1979 Ford LTD. A 1975 Chevrolet Impala is also maintained as an unmarked car. The officers receive $250.00 per year from the City to be used in the purchase of their uniforms, leather wares, and sidearms. As of November 1976 the Police Department has been in a new building. The building has a dispatcher room, an interview room, a forensics room, a squad room, and the police and firemen share a training room. The Chief of Police has a private office. Currently (November 1980) the City jail has been closed due to lack of compliance with State standards. The necessary improvements are being made and the jail will be reopened as soon as the deficiencies have been corrected. When the jail is in use, it has a capacity for six inmates in the detention area. However, the facility is only designed as a holding facility, and is used to detain a person for up to 48 hours prior -20- to transfer to another facility. The detention block is monitored by a closed circuit television that is viewed by the dispatcher and officer on duty. The police administration in Laurel feels that the department is short of specialized manpower. The department personnel has been sent to a variety of special training classes and more are slated for the ensuing months. Of special interest to the department are a juvenile officer and a criminal investigator. The unmarked car and the 1976 Ford are in need of being replaced; both the mileage and the overall deterioration of the vehicles has affected their reliability. The cars will probably be replaced with two marked cars. In addition, the police department needs to expand its force by two officers. This manpower increase would allow each of the three eight -hour shifts to be manned by two officers. As the population of Laurel continues to expand there will be a need to expand the force. As the population reaches 10,000, the police force should have about 15 uniformed patrolmen plus the chief and four specially trained officers. As the police force expands there will be a need to expand the current building to accommodate this increase in manpower. There is a need for an indoor shooting range to keep the officers proficient with their firearms. Also, the reception area of the police department should be equipped with armor plate glass to protect the personnel on duty. Finally, the communica- tions system needs to be updated and equipped with a tape recording system to better assist the response to an emergency situation. The communication system is used by the police, fire, and ambulance services. Concurrent with the communication system update is the installation of teletype equipment. The police force has to rely on the teletypes of nearby law enforcement agencies which result in time delays for the officer as well as an inconvenience for the neighboring agency. Currently, the City of Laurel is participating in a County -wide law enforcement study that will be used to determine the benefits of a single -21- • •••■ /'1 law enforcement agency for the County. If that consolidation occurs, the Laurel police department will become part of the new force and the structure would probably be used as "a precinct office ". If however, the consolidation does not occur, the police facility will need further expansion in the jail area. The long -range needs would be to design and build a jail facility for long term internment that would accommodate 20 inmates. It would include jail facilities, cooking area, eating area, janitor and laundry facilities, and an area for a full -time jailer. Fire Protection The LCP to which this document is an addendum detailed the size, equip- ment, and ratings attained by the Laurel volunteer fire department. The com- plete description is found on pages 3 -22 and 3 -23 in the LCP. The equipment needs of the department have not changed. The department still needs additional self contained breathing apparatus, a specialized "breathing" air compressor, and a triple combination pumper capable of delivering 1000 gallons of water per minute. In addition, the volunteer staff will have to be expanded to in- clude 40 volunteers to better serve Laurel. Also, as multi- storied buildings are erected in the Laurel area, the Department will need to acquire aerial equip- ment to be able to combat a multi -story fire. Ambulance The ambulance service like that of the fire department was fully reviewed in the LCP on page 3 -24. Presently the system is still being operated by a series of volunteers. However, the City has initiated an analysis of this service to determine whether it might be more cost effective to contract out the provision of this service. In either case, the City is committed to the provision of an ambulance service for its residents. All three of these services are physically situated in the same struct- ure. There is just enough space now for the needs of each department. Thus, -22- as the departments expand their services and equipment inventories additional space will be necessary. The logical way to expand the facility will be to add on to the east which will involve the acquisition of several pieces of prop- erty at the prevailing market rate. The ultimate acquisition would put the City in an ownership position of the entire City block. The cost for this acqui- sition would be about $200,000.00 plus relocation costs for the businesses and the residents of the rental dwelling units. This acquisition would be start- ed immediately so that the City is not paying an appreciated price for the land. Parks The City of Laurel is fortunate to have 26 different parks that contain a total of about 125 acres of ground. Each of the parks is described in detail in the LCP on pages 3 -32 through 3 -36. Since the LCP was completed, the Planning Board undertook the task of detailing the design of five of the parks in the Laurel area. This process was done in order that the incremen- tal development of the parks would occur in a logical and functional way. The major problems with the parks in Laurel are that most of them are undeveloped and that most of them are too small. The City of Laurel is des- perately in need of a large tract of ground (30 plus acres of land) to be devel- oped as a community park. Thus, the City desperately needs money to both devel- op the parks and to acquire a new community wide park. In addition, the School District and City have discussed the possibility of building a joint recreation- al complex in the future. Library The services offered by the library are detailed in the LCP on pages 3 -26 through 3 -28. One of the problems identified in the LCP was the lack of space. This situation was temporarily solved when the City utilized a portion of its revenue sharing funds to refurbish the interior of the structure so that the -23- existing square footage was better utilized. However, as noted, this was only a temporary measure and it is only a matter of time before the library out - grows this restructure space. One concept that should be explored would involve an inter -local agree- ment between the School District and the City. As the school facilities are expanded, the instructional media (library) area will have to be expanded. Rather than build two separate libraries it might be a better use of the tax- payers dollar to expand the school's facility into a joint library. The res- idents of Laurel would have access to a greater number of volumes and the time of the librarians would be better spent. Depending upon the amount of new construction versus renovation to an existing structure, the cost for this facility could approach a million dollars. Cemeteries The City of Laurel operates a public cemetery adjacent to a denominational cemetery north of the City. Currently about 50 percent of the land area has been utilized. In the future, additional land will be required. An expansion of the existing cemetery to the north would serve two purposes for the City and result in a savings of tax dollars. The land immediately to the north of the cemetery and south of the Airport Road will need to have development restricted on it due to the proposed future airport expansion. Thus, the pur- chase of the ground by the City will reserve its use for the cemetery and at the same time protect the City plans for the future expansion of the airport facilities. Education The educational system was delineated in great detail in the LCP on pages 3 -28 through 3 -31. In addition the needs of the School system have been ecpress- ed in terms of projects on the last two FmHA 601 State Investment Strategies. The major changes since the completion of the LCP have centered around the budget and the associated problems due to the inflationary cycle that the -24- n county is in. The Laurel School Board in fiscal year 1980 -81 had to ask the voters three separate times for an approval of an operational levy to operate the schools. The budget was cut dramatically and although no programs were eliminated their scope was severely curtailed. One program that was scheduled for implementation in the fall of 1980 was eliminated or more appropriately never initiated; that program was the provision of a public kindergarten. The following table delineates the needs of School District to adequately deal with the projected population and growth of Laurel. Table 8 EDUCATIONAL NEEDS Description Cost School expansion and improvement High School $1,500,000 South Elementary annex 520,000 Graff Elementary annex 520,000 Central School /City library complex, see discussion under the library Acquire land and develop a new elementary school Land acquisition 120,000 Building development 3,000,000 Acquire additional elementary school site 120,000 Construction of a recreational complex (another item slated for joint coop- eration between the City and School district) 2,000,000 Portable bleachers for recreational activities 75,000 Source: Administration School District 7 -70 There needs identify specific items that will be necessary to pro - -25- vide an education to the youth of the Laurel area. However, with the tenuous mood of the taxpayer as evidenced by the three elections required to obtain approval of the operational levy, the timing of construction and the District's ability to secure the necessary financing from the taxpayers of the District is difficult at best to ascertain. Attached One to this document is a copy of School District 7 -70 financial summary for the fiscal year 1978 -79 -- the most recent available. Municipal Administration The City of Laurel has significantly revised the reporting operation of the Clerk's office. It has provided the City Council with a up -to -date report on the status of each revenue and expenditure account rather than the three month lag that was typical before the revision. The major reason for this change in the reporting process has been the introduction of a computer into the operation of the City. To meet the demands that the projected growth will place on the clerk's office, the equipment listed in Table 9 will be required over the next five year period. Table 9 COMPUTER EQUIPMENT Description Cost One NCR type 200 printer $14,000 A disk for tax billing purposes 7,000 Data storage racks 2,500 A #2140 type cash register 4,500 Total $28,000 -26- HUMAN SERVICES Senior Citizens The senior citizens of Laurel operate a senior center at the corner of South 8th Avenue and South 4th Street. The facility is located across the street from Laurel Gardens, an elderly housing project that has an income stipulation for occupancy. The seniors receive a federal subsidy to pay for the building and the utilities. There are meals at this location as well as deliveries made to homes where the resident can't get out. About 90 meals a day are served five days a week with the exception of Holidays. The activities include pool, cards, raffles, arts and crafts, bingo, dances, quilting, potlucks, and an occasional trip. There is a current membership of about 300 persons at the center. Youth Services There is one known day care in the City. It is located at 1002 3rd Avenue and it is called the Christian Day Care Center. There is also one private kindergarten in Laurel; no public kindergarten is offered - see the item under schools of this document. It is operated out of a private resi- dence and in 1977 -78 it had an attendance of 48 children. Health Care Services There is a clinic operated in Laurel at 1035 First Avenue. The clinic provides the standard checkup and health maintenance services. The three doctors at the clinic also provide emergency service to the greater portion of industrial and household accidents that occur in the Laurel area; however, the patient may be sent on to a hospital in Billings. At 421 Yellowstone Avenue is the Laurel Nursing Home. In June 1978 there were 29 patients in the home. This facility offers skilled and inter- mediate nursing care. It has been in operation since April 1964. The nurs- -27- ing home typically is involved with long term care. Four dentists also have private practices in the Laurel area. Finally, three chiropractors also have practices established in Laurel. The remaining human services are provided in Billings about 20 miles to the east of Laurel. The geographic location of Laurel is a distinct advantage for its residents. Billings is a regional health care center and as such has almost every health care services offered by either a private or public provider. In addition to the hospitals and clinics there are about 130 separate human or social service agencies which attend to the needs of an identified or targeted population. The vast majority are designed to serve the needs of the low to moderate income groups. HOUSING The City of Laurel is principally serving as a home for the moderate income worker. As such, the moderately priced housing especially that which takes advantage of the VA, FHA, HUD, and FmHA housing packaging do well in and near Laurel. Based on the anticipated population in 1985 there will have to be about 890 dwelling units added to the City's housing stock. Based upon preference data taken from the Construction Worker Profile it is assumed that 490 single family homes will be needed, 36 duplexes or townhouses, 116 apartments, 223 mobile home spaces, and 18 dwelling units that fall into a category defined as other. The totals do not quite equal the projected hous- ing units but that is due to the preference factor and rounding of the totals. Regarding the availability of real estate loans, a survey of a local lending institution revealed the following data. To date the institution has about eight million dollars loaned out for real estate loans. The bank further indicated that they always carried a heavy proportion of real estate loans for -28- n a commercial bank. The officer further indicated that the lending institution would continue to try to meet the needs of their customers. Several factors that are beyond the control of the lending institution include the availability of money, the interest rate, and the ability to resell real estate loans in the secondary mortage market. FINANCIAL RESOURCES The ability of a city to generate sufficient revenues and provide services to a growing city population is a function of the tax structure, the desired levels of service, and the adequacy of existing facilities. The major sources of city revenues, property taxes, governmental transfers, and local fees, have not grown as rapidly as inflation sensitive service demands. In the role as a service center for the coal cars used in South - eastern Montana and to a limited degree, as a bedroom community for the regional service center of Billings, Laurel provides many services for a relatively large number of nonresidents. Increased demands have been put on the City in the area of transportation maintenance and improvement, provision of water, treatment of sewage, police'and fire protection, and recreation. To provide these and other services the City has to rely on the property tax, fees, and intergovernmental transfers. The State Legislature and the people of Montana have time and again rejected the form of taxation which could be of benefit to any city - a sales tax. The City of Laurel grew about 20 percent in population size from 1970 to 1980. The last five years of the past decade found the City striving to meet the mandated requirements of the EPA for both water and sewer, expand and revamp the administrative areas to provide a more functional service, deal with periodic flooding from overland flows of surface water, and update the -29- /'\ myriad of other services to meet the various demands of the consumer and ful- fill the changing requirements of state and federal licensing agencies. The City has been very judicious in its use of federal revenue sharing monies to complete the renovation of city hall and to use it as the local match when required by a state or federal grant. In addition, the City has been the recipient of several HUD -CDBG grants, EPA grants, HUD -701 planning grants, Coal Board grants, and FmHA 601 planning and project grants. All of these have helped to put the City in its current position. But, the City is at and has been at its maximum mill levy for general purposes for the last six years. Also, the City got voter approval for a major bond issue to con- struct a partial trunk storm sewer system; additional improvements are being analyzed. The costs associated with these improvements are projected to run into the millions of dollars. EPA has also required that the City change its treatment process from primary to secondary. This change will be a costly venture and will require a substantial local match from Laurel. The City is facing all of these needs at a time when the property owner (taxpayer) is starting to say no to tax increases and bond issues. This is very evident in the Laurel area due to the experience of the School District. Table 10 is an unprioritized list of the site acquisition and site development projects that will be necessary in the Laurel area during the next five years. The Table provides a brief description of each of the projects; each project is referenced in another section of this FmHA 601 planning up- date and usually has a more detailed description of those sections. The costs that are shown are estimated figures in 1980 dollars. The proposed method of funding is a listing of the various State and federal agencies as well as the local units of government which could participate in the costs associated with the specific land acquisition project. -30- n /'N Table 10 LAND ACQUISITION PROJECTS Project Description Cost Method of Funding Site acquisition for FmHA 601, FmHA Water and upper reservoir site $50,000 Sewer Program, Local, Coal Board, HUD Site acquisition or FmHA 601, FmHA Water and leasing for trans- Sewer Program, Local, Coal mission main to serve Board, HUD the upper reservoir 15,000 Storm Sewer, site Currently unknown, will forward to FmHA as an up- acquisition for right- date, to this document once the plan is completed. of -way for facility location Right -of -Way acquisi- Local, developer dedication, tion for Westside Art- State Highway Department, erial 200.000 FmHA 601, Coal Board Cemetery land acquisi- FAA, State Aeronautics, local tion for expansion 400,000 FmHA 601 Land acquisition for the Local, FmHA 601, HUD, Coal Fire, Ambulance, and Board Police Complex 200,000 Site acquisition for two Local, Coal Board, FmHA 601 elementary school sites 240,000 It is realistic to assume that the Laurel City Council will continue to provide the highest level of service to its residents within the monetary constraints of the mill levy. Laurel will continue to explore all avenues of State and Federal funds and to apply for any realistic source of funds which can help offset the vast expenditures facing it in the next decade. Laurel is familiar with the rules of grantsmanship and will continue to use inform- ation sources as the Federal Assistance for Energy Impacted Communities which lists the myriad of programs that are available to communities. The governing body will have to closely analyze all available local, state, and federal sources for funding the provision of services, site acquisition, site -31- development, or capital equipment needs on a case by case basis. The approp- riate mix or ratio of funding sources will vary from project to project and will depend highly on new state and federal rules and regulations as well as the mood of the local taxpayer. Attachment Two indicates the revenues that are filtered to the cities and counties on a formula -basis from the State. Attachment Three is a summary of Laurel and its revenues, expenditures, taxes, and bonding situation. It should be noted that there is a 1.8 million dollar general obligation bond being used to pay for the trunk storm sewer that has not yet appeared on the State's re- ports. In addition, Attachment Three also compares Laurel to other cities of similar size across the State. Attachment Four is a more detailed analysis of the City's revenues and expenditures from 1974 through 1978. Finally Attachment Five is still a more detailed breakdown of the revenues and ex- penditure by individual account from 1974 through 1978. Budget surpluses are items that do not exist at any level of government in the State. The State budget is governed by section 15 -30 -112 of the Montana Code Annotated which states that at the end of a fiscal year any state general fund balance over $13 million is automatically converted to personal income tax relief and is not available to'be treated as a surplus or for appropriation. Due to the fact that Montana does not authorize a general sales tax and levies a state -wide property tax of less that 12- mills, the state government is support- ed primarily by income taxes. Budget surpluses can not accrue at the local level because revenue must equal the expenditures according to Montana State law. 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'1, ,....., ,. :, ........,...„::..4- :.-.'...r.,,-.:..,:..,.-,:...; ., , :.... , . , ;.....;......4-... ,:;...,,..‘4....--'-...; t,r) -1-,---, ---, ...,...,:ki...-•,- -7..:7I . • ------' .•;■.. 1..,,:... v e o e 11 11 . 11 I.,. i illt • • • ' It • 0 . t• • .-, - /'■ • /'■ • State Shared Revenues (Formula- Based) for Yellowstone County /Laurel Fund 1980 1981 1982 1983 Alcohol Tax 184,106 156,898 156,900 156,900 (Laurel) (9,009) County Land Planning (Coal Tax)* • 27,772 24,580 33,700 39,740 Financial Institution Corporation License Tax* 738,079 738,100 738,100 738,100 Gasoline Tax (Yellowstone) 125,020 125,000 125,000 125,000 (Laurel) 42,192 42,200 42,200 42,200 Wine Tax 11,870 11,900 11,900 11,900 Payments for state -owned acreage* 480 480 480 480 * Figures unavailable for individual cities • Source: Department of Community Affairs, Planning Assistance Division, September 1980 ATTACHMENT TWO 1 of 1 n /'1 v 0 s.0 CO r OT) W .•i W C4 o N � • � N 4-) z .-i 0 U a. • -4 X 4a 1 Cd Cd x O > d -0 > L) ■-i O N co • U a at 4-) •- E-• r-i M •:zt • 1 •t H in .. • .0 r Z r M O cd cd • H CO N 0. 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