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03/16/1989 - Minutes Minutes: Committee of the Whole Thursday, March 16, 1989 5:00 - 8:00 P.M. City Council Conference Room 324 South State Street Salt Lake City, Utah 84111 In Attendance: Tom Godfrey, W.M. "Willie" Stoler, Florence Bittner, Wayne Horrocks, Alan Hardman, Sydney Fonnesbeck, Roselyn Kirk, Lee King, Cam Caldwell, Cindy Gust-Jenson, James Hall, Linda Hamilton, Gordon Hoskins, Bill Wright , Gary Mumford, Dennis Day, Merna Smith, LeRoy Hooton, Emilie Charles, Press Ms. Linda Hamilton, Director of Finance, distributed and reviewed her memo and policy paper of March 9, 1989. [attachment #1] Ms. Hamilton said that at the present time, the Finance Department was not asking for additional appropriations, but that they were looking internally for the resources to carry out the recommendations of the Peat Marwick Audit and Council directives. She said that after a review of the Audit and its recommendations, the department may approach the Council for additional resources. Ms. Hamilton said that centralizing the contracting function was established as a goal in 1985 but that needed resources were not made available. She said that only 230 out of the 800 (approximately) contracts entered into by the City came through the Purchasing Department. She said that 2 people handle all of the contracts and that no one has a grasp on the whole contracting picture. Ms. Hamilton said that the Internal Auditing function was another major issue in the department. She said that the internal auditors were to determine if City resources were being used correctly, and to design and monitor financial controls and procedures to achieve this. She said that the Finance department was preparing to do a comprehensive review of the City's financial procedures and, though the internal auditors needed to be independent in the long run, she wanted them under Finance for the first year to facilitate this review. Relating to the contracting issue, Councilmember Roselyn Kirk asked how many full time equivalents (FTE's) would be needed. Ms. Hamilton said that they needed one secretary, one auditor, and two analysts for a total of 4 FTEs. Councilmember Alan Hardman asked if the FTE cuts suggested in the Peat Marwick audit had been looked at before adding new positions. Ms. Hamilton said that the Department was looking to redirect current positions in order to do the work. She said that part of the problem was that most contracts were handled by people who didn't do contracts full time, making it difficult to move the position. Mr. Hardman asked if contracting for the Enterprise funds would be centralized. Ms. Hamilton said that each enterprise fund had its own contracting expert and that they would stay independent. She added that the construction contracts were all handled by the Engineering Division and indicated that practice would continue. Cam Caldwell, Council Staff Budget Analyst, reviewed his staff paper [attachment #2] and said that he had two points of disagreement with the Finance department's approach to internal auditing. He said that they were concerning policy direction and the role of contract management. Mr. Caldwell said that he agreed with Finance on the importance of contract management, but disagreed on whether that meant monitoring the contract performance of others, or processing the contracts themselves. He said that he felt that the internal audit function did not include setting or implementing policy. Mr. Gary Mumford, Manager of Financial Reporting, said that many internal auditors are involved with the implementation of controls but that separation should be maintained between creating, implementing and monitoring the controls to avoid conflict of interest. Mr. Caldwell said that management should implement the controls and that the internal auditors should be independent. Ms. Hamilton said that the Peat Marwick Audit recommended that the internal auditors be independent after a period of time. Ms. Hamilton said that she was asking that the auditors be under the Finance Department for 12-24 months in order for the department to review current financial controls, design and begin implementation of new controls, and get tough on current inefficiencies. She said that the auditors will gain independence as time goes on, but that she needs them as a tool to restructure the current system. Councilmember Hardman said that the Peat Marwick Audit said that the internal auditing function should be moved out of the Finance Department. Ms. Hamilton said that eventually the auditors will report to an independent audit committee but that she needed them in Finance for a year to fix current problems. Mr. Caldwell said that, while everyone want tighter financial controls, he believed that the auditors should be moved out of Finance sooner and that they should not be involved in the implementation of new controls. Councilmember Bittner said that she was concerned that no one person knows what is going on in the contracting system. She said that the workload could be streamlined by centralizing the system. She said that the council should strongly support the effort to centralize contracting and that they should give the Finance Department the tools and resources to do the job right . Mr. Godfrey and Mr. Stoler said that they agreed with Ms. Bittner. Ms. Bittner said that the Council should endorse a policy direction toward centralization, encourage Finance to redirect internal resources to do the work and then worry about specific budget impacts during the budget process. Ms. Hamilton said that, if finance is given the direction to begin to centralize the work, she needed two technicians and a secretary to build the database to begin the analysis work. She said that they were looking at the six suggested FTE cuts in the Peat Marwick audit to see if they can do the work without adding any FTE's, but that if they couldn't , she would approach the Council for additional resources. Mr. Godfrey said that the Council should allow Finance to keep the internal audit function for a year to asses where the department stands . Mr. Hardman asked who was researching the audit function. Mr. Caldwell said that Council staff was researching the role of internal auditors. Ms. Bittner asked if Mr. Caldwell and Ms. Hamilton were asking for the same thing. Ms. Hamilton said that Mr. Caldwell wanted the internal auditors moved from finance immediately, and that she wanted to keep the auditors for a year to review and tighten existing controls. Mr. Stoler asked Mr. Caldwell to gather more information about the role and location of the internal audit function. He said that the Council should meet again when it had more information and make a decision then. Ms. Hamilton asked that the Finance Department be included in that meeting. Mr. Stoler agreed. Dennis Day, Director of Libraries, said that the Council had requested that the Library make a presentation on the possible expansion/relocation of the main branch of the City Library. He introduced Ms. Merna Smith who reviewed the paper, "Options for relocating the Main Library of the Salt lake City Public Library System." (Attachment #3) Mr. Day said that the Library building was the oldest building on the block, and with he east side of the block going to jail space, the west side had great potential for a library complex. He said that the plaza would be renovated and that the library complex would tie in closely to Washington Square Park and the City/County Building. He said that a modern library was a strong attraction for economic growth because of the critical part that information plays in today's economy. Ms. Bittner said that she didn't think that the Library was being realistic in its assessment of parking resources on the block. Mr. Day said that the parking terrace for the library had been taken over for Hall of Justice employee parking and that parking needs were included in the overall plan for the library expansion. Mr. Horrocks said that reopening the City/County Building would just make parking problems worse and asked if a different site would provide more parking resources. Mr. Bill Wright said that a parking study would be able to quantify the needs of the area. Mr. Day said that they would like to stay in the same area if possible . Mr. Godfrey asked how much renovation would cost, and how much a new building would cost. Mr. Day said that renovation would cost approximately $9 million and a new building, including furnishings, would be about $26 million. Mr. LeRoy Hooton, Director of Public Utilities, and Bill Wright, of Planning, reviewed the proposed annexation of City owned property in City Creek Canyon. (attachment #4) Mr. Hooton said that the annexation would give Salt Lake City more control over property it owned in terms of law enforcement and watershed protection. He said that the City currently exercised extraterritorial control over the watershed, and that annexation would consolidate ownership and control. Mr. Stoler said that many people feared that their hunting rights in the canyon are threatened by the annexation. Mr. Hardman asked what authority the Public Utilities Department used to control access to the canyon. Mr. Hooton said that it was under the right to protect the watershed. Ms. Bittner said that many people were upset at restricting access and felt like their canyon was taken away from them. Mr. Hooton said that the City Creek Canyon Master Plan (attachment #5) was approved by the Council and that the issue can always be reexamined. Mr. Hardman asked who else owned property in the canyon and who controls it . Mr. Wright said that there were two private parcels of land but that they would not be effected, and that they County owned some land but let the City control because of its proximity to the City. Mr. Hooton said that it was the problems with law enforcement and traffic control that led to the need for a reservation and fee system, and that the annexation would increase accountability. Mr. Stoler asked if the annexation increased the City's liability in case of natural disasters in the canyon. Mr. Wright said that the annexation gave the City political control but not added liability for natural disasters. Mr. Hardman asked who fought fires in the canyon. Mr. Hooton said that the City patrolled the area and the Forest Service fought the fires. Mr. Hardman asked what would happen after the annexation. Emilie Charles of the Mayor's office, said that small scale, low-cost improvements would begin according the plan outlined in the Master plan. Mr. Wright said that the developments would be in the lower canyon and would maintain the goal of protecting the watershed. Ms. Charles said that the improvements are being guided by an informal committee made up of people who helped with the master plan and wanted to stay involved. Ms. Gust-Jenson asked if the Council wanted the annexation on the agenda. Mr. Stoler said yes. r / A',APLY•r W. M. Willie" Stoler, Chair Attest: City Recorder WPM WIT-G:O - 'IOq OFFICE. OF:THE CITY-COUNCIL • : ',SUITE 300,.CITY HALL 324 SOUTH STATE STREET;4„Af�SALTE,CtT,Y, 1TAM :._ 5:3S=:°f60O Posted: March 15, 1989 SALT LAKE CITY COUNCIL COMMITTEE OF THE WHOLE MEETING DATE: Thursday, March 16, 1989 TIME: 6:00 p.m. , or immediately following the meeting of the Redevelopment Agency Board of Directors. PLACE: City Council Conference Room Suite 300, City Hall 324 South State Street. AGENDA Dinner. Linda Hamilton, Director of Finance, will review departmental goals and policies with the City Council. Dennis Day, Director of Libraries, will brief the City Council on a proposal to build a new main library building. Bill Wright, Planning and Zoning, and Wendell Evenson, Department. of Public Utilities, will brief the City Council on the proposed annexation of City Creek Canyon. cc: Mayor Palmer DePaulis, Mike Zuhl, Emilie Charles, Roger Cutler, Kathie Marshall, Department Heads, Press • DEPARTMENT OF FINANCE 324 SOUTH STATE STREET, 5TH FLOOR LANCE R. BATEMAN, CPA SALT LAKE CITY, UTAH 84111 PALMER DEPAULIS DIRECTOR OF FINANCE MAYOR (801) :•535-7676 March 9 , 1989 TO: Cam Caldwell City Council Office RE: DEPARTMENT OF FINANCE-POLICY DISCUSSION Attached hereto please find the Policy Discussion papers for our March 16, 1989 meeting with the City Council. Please let me know if you have any questions. Thank you. Linda Hamilton Directof of Finance LH/hd Enclosures cc: Mayor Palmer DePaulis Mike Zuhl Scott Bond Gordon Hoskins Gary Mumford Larry Failner ✓Auzz Hunt + r FINANCE DEPARTMENT POLICY ISSUES MEETING WITH CITY COUNCIL MARCH 16, 1989 DEPARTMENT OF FINANCE POLICY DISCUSSION CITY Ca/TRACTS: A ntmiber of years ago, Salt Lake City Corporation elected to centralize its procurement function for materials, supplies and most non- professional type services. The Purchasing and Property Management Division was given responsibility for controlling the central procurement function. Contracts for construction are handled by the City Engineerirng Division, the Airport Engineering Division and the Public Utilities Engineering Division for their respective agencies. Until three years ago, contrasts for professional services and other miscellaneous types of service contracts were handled dir cily by the agency requesting the service. In 1985, the derision was made to draw all contracting for professional and other miscellaneous services under the Purchasing umbrella, but.staff was not provided for this purpose. THE ISSUE: Should the City continue with the contract centralization effort, or should the contract process remain decentralized? - One agency would be responsible for coordinating the contracting process. This would enable•the central agency to monitor and control contracts and reduce contractor frustration when inquiring ii r;ng about a contract. - One agency could guarantee budgetary control, verification of funding prior to release of payment and monitoring of contract compliance. - Procedures could be streamlined because of central control, thus improving response time while exercising adequate control. - We could ensure that contract terms and conditions were used consis- tently, thus reducing the City's risk due to misinterpretation. - We would assign are contract number per contract. Contracts currently have a minimum of three separate members a-Gsigned; some have four numbers assigned. - We would provide departments automatic notification, prior to contract expiration. This will give assurance of timely contrast renewal. - We would allow all departments it uiry capability on the central system, improving -s, reducing inquiry time and reducing frustra- tion for City departmental personnel. D - With the current staffing level in the Purchasing and Property Manage- ment Division, centralized contracting is not possible. - Centralization of the contract function would require a significant increase in staff and work space in the division. - Centralization would require a major change in the current City practice, which allows any Department Head to request preparation and signature of a contract directly. - It is a violation of the current City C , Section 3.24.050, B, which states that "The City's Chief Procxurenent Officer shall order and purchase supplies and contractual services needed by the City or any of its departments or division, including the Office of the Mayor, in accordance with City Ordinance and such policies and procedures adopted for the internal management and operation of such purchasing function." - Certain departments currently handle contracts directly. This places the City at risk for the following reasons: 1. Many City contracts are not monitored properly. Contracts need to be monitored note carefully and cons cc1ozs should be audited from time to time. Some contracts are allowed to expire, leaving the department without essential contractual services. 2. Many departments do not follow specific guidelines when soliciting proposals and many do not solicit proposals at all. No doubt, we are paying a premium price for such contracts. 3. It is difficult to determine who is actually responsible for a given contract under the present system. In some cases, no specific department will acknowledge responsibility for a contract. (Example: Ambulance contract) 4. Most departments do not maintain adequate records of proposals, received. The law requires that they be available for public arrpsq 5. Some contracts are signed by unauthorized individuals, are not approved by the City Attorney and funding has not been veri- fied. Sudh agreements are not legal under City Ordinanoe. - Because no central agency is actually responsible for all contracts, the current contracting process is extremely slow and cumbersome. The average contract document must pass through a minimum of 39 steps before the Mayor signs it. Average processing time to complete the cycle is 60 to 90 days. This is not an acceptable turn around time to meet the City's operating requirements. If the proper equipment is made available, central control would reduce the number of slap, re- quired and documents could be prepared and transmitted electronically. RECOVENDATIONS Phase One - Immediate Need. - Hire a full time secretary to support the existing Contract Sp cialist and Assistant Contract Specialist in typing correspondence and contract documents. Phase Two - Action Requested July 1, 1989. - Take one of the two following steps: 1. Determine that the City contracting process will remain decentralized. A. Revise the existing ordinance to reflect dAcision. B. Make Department Head responsible for certification of funding. C. Make Department Head responsible for monitoring contracts. 2. Determine that the City contracting process will be centralized for processing. A. Hire two technical clerks to write specifications and handle the increased document flow. These employees would report to the Assistant Contract Specialist. B. Repru ram the computer system for centralized control and budget checking. Phase Three - Action Requested December 1989. - Hire an Assistant Contract Specialist and a technical clerk to handle contract monitoring and training.n . Additional secretarial assistance may also be required at this point. -2- DEP l FINANCE POLICY DI;3QION INft1 L AUDIT HRcrICN: One of the main goals of the Department of Finance is strengthening financial controls. The internal audit function is vital to insure that proper controls and procedures are in place and effective within the City. Internal auditing will be one of the major factors in providing more emphasis an financial controls. Currently the City's internal audit function is weak and insufficiently staffed. As a result, the Department of Finance is unable to ensure that internal controls are adequate, and we are unable to enhance or tighten controls. To be effective, internal auditing must be physically stnwigthened and independence guaranteed. We intend to use internal audil;oL, to build, implement and strengttenmnagerial and internal controls. Internal auditing should serve as an organizational control as well as a link between managenent planning and operating performance. These goals can best be accomplished within the Finance organization assuming a mechanism is in place guaranteeing the necessary independence. THE ISSUE: The Finance Department's ability to tighten controls of the City's funds and programs is hampered by an inadequate internal audit program. NEED TO SMENGIHEN INTERNAL AUDITDG: - Periodic internal control audits are particularly nestled on the City's accounting and financial systems (i.e. payroll, purchasing, accounts payable, investments, etc., ) and an controls surrounding the receiving of revenues, disbursing of funds, and the safeguarding of a-ssimts. Some financial auditing and financial statement preparation are also required to be performed by the internal audit.uLS (i.e. Sugar horse Park Authority, Council of Governments, etc. ). The City's policies and procedures need to be reviewed to determine that appropriate internal controls are in place. In addition, internal auditors should be involved with the designing of new accosting or financial systems. In order to accomplish all of these tasks additional audiluLs are required. - Internal control audits provide information abort the adequacy and effectiveness of the City's internal controls. In addition, economy, efficiency, and performance reviews are included to some degree with every internal audit. Although the primary responsibility of internal auditors is evaluating internal controls, these audits also include a review of the quality of performance in carrying out aa-signed responsibilities. They provide analyocz, appraisals, recommendations, counsel, and information concerning activities reviewed. - Performarnce and operational auditing fcrs>s s on determining whether the City is arxuiri ng, protecting, and using its resources, including personnel, economically and efficiently, and determining the cat'ces of inefficiencies or uneconomical practices. These audits include ptetwting operational efficiency and encouraging adherence to prescribed managerial policies and City objectives. The City needs the ability to solve operational and management problems while they are small and manageable. Problems should not be left uncovered until the City Council chooses to conduct a management study. -3- REOMMENIATIONS; - In the short term, internal auditing can be strengthened by funding the vacant position, by providing assistance from budget staff, and by coordinating with others in the City with auditing responsibilities. However, it is important that an increase in the number of full-time auditors be considered. The City will save funds through cost avoidance in the long run by tightening controls and increased efficiencies. - The internal audit function should be located in Finance because the financial narci al controls are the responsibility of the Finance Director. The materials, documents and many of the major financial controls are located in the Department of Finance. The Department of Finance has the expertise and additional experienoad individuals to provide assistance. Locating internal auditing in the Department of Finance also allows for a blending of legislative and adminibiLative intents. - Independence can be given to the internal audit function through an approved charter which will establish an oversight or audit committee. The oversight committee provides authority, direction and possesses the power to implement corrective actions. Individuals serving on the audit committee can include representatives from the Mayor's Office, City Council, citizens, and can include City Department Directors or other City employees with a particular expertise on an as-needed or rotation basis. - Our corrective actions which will begin immediately include improving monitoring and controls, and auditing those systems and controls with the maul, estimated risks. All written policies and procedures will be reviewed for the existence of adequate cormtrols. After the written policies are reviewed and the initial priority audits have been completed (approximately one year), the audit committee will be established to independently direct the audit work plan. The committee will serve a reporting function and receive follow-up from departments when corrective action is recommended. The audit committee will also serve as an independent committee to resolve differences of opinion with respect to audit findings and recommendations, and to accept alternative corrective actions where app.wpiiate. -4- EXBOUTIVESUMMARY Centralized Contracting The advantages of centralized contracting include the following: (1) It provides for better monitoring and control, thus ensuring that the City is getting what it pays for; (2) Verification that funds are available in the budget before payment is made; (3) Procedures could be streamlined reducing the time required and the frustration of departments, vendors, and the public; and (4) Departments would be notified when contracts are about to expire. The primary disadvantage of centralized contracting is that it would require additional staff. The disadvantages of the current decentralized system include the following: (1) It is not consistent with the ordinance; (2) Departments frequently don't even know what is included in contracts, let alone verify that the service is received as prescribed; (3) Essential contracts expire because it is unclear who is responsible (e.g., ambulance); (4) Contracts may be signed by unauthorized persons and may not be reviewed by the City Attorney or Finance; and (5) Because so many people in different p]aces have to review the contracts, the process is slow and cumbersome. It is recommended that the City move towards a centralized contracting system. The City should immediately hire one full-time secretary. It is recommended that by July 1 two technical clerks be hired and the computer.be reprogrammed for cenLLalized control and budget verification. It is likely there will be a future need for an additional Assistant Contract Spe ia1ist and a technical clerk. Internal Audit The current internal audit function is inadequate for two reasons. First, it is staffed inadequately. Only one full-time FTE is allocated to this critical control function. Second, the audit function has not been provided adequate independence so that the time of the one FTE is often taken up with other projects. A strong internal audit function is critical. Without internal audit, it is impossible to verify that internal controls on funds are adequate or that those controls are implemented. It is also essential to have the raparity to perform some operational and performance audits. There audits ensure that resources are used effectively, efficiently, and in conformance with policies. These audits identify problems while they are small, easier to manage, and less costly to fix. It is recommended that the vacant internal auditor position be funded immediately. It is also recommended that the internal audit function be located in Finance. Internal audit will one of the primary tools available to Finance to implement the mandate of the Mayor and City Council for the Finance Department to exert greater control over the City's Finances. This should be the first priority of internal audit. A systematic review of all finance control policies has already begun. Within one year an audit committee should be established to which the internal auditors will £rpoL L. This will provide the necessary independerce which has previously been lacking. /A/ • (-762--vy Council Staff Summary Finance Department Policy Meeting March 16, 1989 The Finance Department has presented two issues for consideration by the Council. The following is the staff analysis of these two issues. City Contracts Department Proposal The policy proposal of the Finance Director is to 1) immediately hire a full- time - secretary to support existing Contract Specialist staff, 2) hire two additional technical clerks in July, 1989, and 3) hire an additional Assistant Contract. Specialist, an additional clerk, and perhaps an additional secretary in December, 1989. As an alternative to these steps, the Finance Director proposes to decentralize the Contract Administration Section if it is determined that this service no longer needs to be performed on:a centralized basis. Peat Marwick Analysis The Peat Marwick recommendation was that the City should reassess the mission and role of the Contract Administration Section. The audit recommendation is very specific and detailed, and for that reason it is reproduced below: "Included in this assessment would be the scope of services to be offered by the Department, i.e. , whether Contract Administration should continue performing as is or whether it should be involved as oversight in developing policy and procedures for all contract and agreement activity within the City Departments. "When considering factors involved in the assessment, the following items should be included: - The originating sources and volumes of contracts and agreements within the City, _ Personnel and skill sets currently involved in the process, The City Attorney's satisfaction with current procedures and assessment of potential exposure to liability, -1- - Cost benefit of further proceduralizing or overseeing contracts administration under an expanded scope, and - The views of Purchasing and Property Management executives as well as other City department executives. "An assessment of the Contracts Administration Section would provide clear direction as to the goals and responsibilities for this Department as well as other City Departments involved with contracts and agreements. "(Pages IV-16-17) Curiously, the audit also reports that "Interviews with other Departments indicated their satisfaction with current City procedures and their own controls over administration of their own contracts. "(Page IV-16) It may be appropriate to include in the data collection process a series of questions to the departments to clarify their perceptions about the current Contract Administration process and why they feel satisfied with existing procedures. Basis for Internal Controls It is generally accepted that the decision process for initiating any internal control involves the analysis of. two factors. The first factor is the risk of loss if no control is implemented. The second factor is the cost • of implementing the control. The data base for assessing the nature of the risks associated with the contracts now outstanding with the City is not known at this time by the Council staff. According to the Chief Procurement Officer, there are approximately 816 contracts and 41 contract amendments currently in force in the respective departments of the City. Contract Administration currently "processes" 230 of these contracts. No "loss at potential risk" analysis has been conducted by the City to date. Another practical issue facing the City is the cost benefit associated with having a standardized system for processing and reviewing contracts. The process provided by the Contracts Administration section seems to have reduced attorney time in preparing formal contractual agreements with vendors. • According to the City Attorney, the Contract Administrator was an effective resource in saving time for the City Attorney's Office and the City in standardizing contracts and identifying efficiencies. There has not been a mechanism established to date, however, for actually standardizing the process of monitoring quality control of contracts on a • centralized basis. The value of providing that service needs to be quantified by the department and included in the list of variables identified by Peat Marwick in making a decision about the role and mission of Contract Administration. Need for Additional Analysis At this point Council staff feel comfortable in recommending that the department be encouraged to complete the comprehensive analysis recommended in the Peat Marwick audit. After that analysis is completed and the cost benefits identified, the department would then be able to present a -2- recommendation to the Council which it could evaluate. It seems clear that the Contract Administration function saved time and money for the City in standardizing and reviewing contracts. The extent which -that process should be expanded merits additional study. Internal Audit Function Department Proposal The policy proposal of the Finance Director is to expand the internal audit function within the Finance Department, to request funding of the vacant internal auditor position, and to maintain the existing staffing level for the Auditing and Financial Reporting Division. Peat Marwick Analysis The Peat Marwick recommendation opposed keeping the internal audit function in the Finance Department. The basis for that recommendation is best understood in context with important background information included in the Peat Marwick report. The Finance Audit emphasized the need for the Mayor and the Finance Department to clarify the role of the Finance function. The audit was specific in noting that the Finance Department goals should be tied to a long-term strategic plan for monitoring and controlling the City"s financial resources. In addressing the need for the mission and goals of the Finance Department to be clearly defined, the audit reads: "A formal role clarification, either an administrative directive of the Mayor or a modification of the administrative ordinance, is needed to establish and preserve an effective working relationship between the Finance Department and other City departments. "(Page II-3) The role of the Finance Department in that plan, according to Peat Marwick, is to strengthen the financial controls associated with the budget process. The Finance audit speaks specifically about the reorganization of the Finance function to establish a new Budget Division. It describes in detail the financial management and analysis functions of the Budget Division. It identifies the benefits of the new budget division to improve decision making, reduce staff effort, improve the allocation of resources, and increase accountability. The audit report indicated that it recognized that the role of the internal audit function was considered a "critical activity". However, the report recommended that the function be transferred out of the Finance Department "to increase the visibility of the internal audit function and provide proper independence. "(Page III-20) Based upon the review of the internal audit function in the Peat Marwick audit, it seems clear that there is a need to strengthen fiscal and budgetary controls in the Finance Department. The audit seems to advocate that before Council takes action in restructuring the Finance Department, it may wish to -3- request the Mayor and Finance Director to formally define the mission and role of the Finance Department. Based upon the Peat Marwick analysis, however, .there seems to be little basis for retaining the -internal audit function--in the Finance Department. Existing Fiscal Controls Many of the controls addressed in the policy report prepared by the Finance Department are recommended by the Finance audit to be accomplished in the Accounting Division. The audit report also notes that the Finance Department currently performs some generic internal auditing already within this division. Monitoring of financial controls is an inherent part of many fiscal operations. Additional fiscal controls for the Finance Department are monitored by the City's external auditor. The purpose of the annual independent audit is to confirm the accuracy of the City's financial statement and to verify that financial procedures are in compliance with generally accepted accounting principles for government accounting. The Auditing and Reporting Manager is acknowledged by the City's external auditor to be the City expert in monitoring financial controls and in performing the staff work associated with the external audit. Accordingly, Council staff appreciate the importance of retaining the Auditing and Reporting Manager's expertise within the Finance Department to help monitor fiscal controls and to assist the City in the timely completion of the annual audit. The need for the existing Internal Auditor position should be evaluated in context with the need for additional fiscal controls, after the Finance Department has completed a more comprehensive review of its mission. • Need for Additional Analysis Council has expressed a strong interest in developing within the City an organizational capability to independently and objectively assess the effectiveness of departments in achieving goals, the efficiency of City programs and services, and the quality of the City's internal control systems. In an effort to evaluate the best location in the City to locate the internal audit function to accomplish these goals, Council staff are in the process of researching this issue. That research is expected to be completed shortly. In light of 1) the apparent need to reevaluate the role of the Finance Department, 2) the Finance audit recommendation to remove the internal audit function from the Finance Department, and 3) the importance of placing the internal audit in the right place in the City's organizational structure, Council staff recommend that no decision be made about the internal audit policy issue at this time. Staff would like the opportunity to present additional information to the Council about the placement of the internal audit function after staff research on this topic has been completed. Staff Recommendation 1) Request the department to provide additional information which analyzes the services provided by the Contract -4- Administration section and the cost of the risks associated with contracts administered by City departments. 2) Defer a final decision regarding the internal audit function in the Finance Department until additional information can be researched regarding the placement of the internal audit function in City government. • -5- SALE'OM man-ant-sammotiii DEPARTMENT OF FINANCE 324 SOUTH STATE STREET, 5TH FLOOR LANCE R. BATEMAN. CPA PALMER DEPAULIS SALT LAKE CITY. UTAH 84111 DIRECTOR OF FINANCE MAYOR (801)':5535-7676 March 9 , 1989 TO: Cam Caldwell City Council Office RE: DEPARTMENT OF FINANCE-POLICY DISCUSSION Attached hereto please find the Policy Discussion papers , for our March 16, 1989 meeting with the City Council. Please let me know if you have any questions. Thank you. Linda Hamilton Directof of Finance LH/hd Enclosures cc: Mayor Palmer DePaulis Mike Zuhl Scott Bond • Gordon Hoskins Gary Mumford Larry Failner Buzz Hunt J FINANCE DEPARTMENT POLICY ISSUES MEETING WITH CITY COUNCIL MARCH 16 , 1989 DIVE SUMMARY CenLLdlized Contracting The advantages of centralized contracting include the following: (1) It provides for better monitoring and control, thus ensuring that the City is getting what it pays for; (2) Verification that funds are available in the budget before payment is made; (3) Procedures could be streamlined reducirg the time required and the frustraticn of departments, vendors, and the public; and (4) Departments would be notified when contracts are about to expire. The primary disadvantage of centralized contracting is that it would require additional staff. The disadvantages of the current decentralized system include the following: (1) It is rot consisWirt with the ordinance; (2) Departments frequently don't even know what is included in contracts, let alone verify that the service is received as prescribed; (3) Essential contracts expire because it is unclear who is responsible (e.g., ambulance); (4) Contracts may be signed by unauthorized persons and may rot be reviewed by the City Attorney or Finance; and (5) Because so many people in different places have to review the contracts, the process is slow and cumbersome. It is reoamended that the City move towards a centralized contracting system. The City should immediately hire one full-time secretary. It is reeoanmended that by July 1 two technical clerks be hired and the computer.be reprogrammed for centralized control and budget verification. It is likely there will be a future need for an additional Assistant.Contract Specialist and a technical clerk. Internal Audit The current internal audit function is inadequate for two reasons. First, it is staffed inadequately. Only one full-time FTE is allocated to this critical control function. Second, the audit function has not been provided adequate independence so that the time of the one FT'E is often taken up with other projects. A stsvng internal audit function is critical . Without internal audit, it is impossible to verify that internal controls on funds are adequate or that those controls are implemented. It is also essential to have the Capanity to perform some operational and performance audits. These audits ensure that resources are used effectively, efficiently, and in conformance with policies. These audits identify problems while they are small, easier to manage, and less costly to fix. It is recommended that the vacant internal auditor position be funded immediately. It is also reeamrended that the internal audit function be located in Finance. Internal audit will one of the primary tools available to Finance to implement the mandate of the Mayor and City Council for the Finance Department to exert greater control over the City's Finances. This should be the first priority of internal audit. A systematic review of all finance control policies has already begun. Within one year an audit committee should be established to which the internal auditors will report. This will provide the necessary independence which has previously been lacking. w M DEPARTMENT OF FINANCE POLICY DISCUSSICN CITY C1CN1RAC1S: A number of years ago, Salt Lake City Corporation elected to centralize;ze its procurement function for materials, supplies and most rxxi- profPRssicnal type services. The Purchasing and Property Mfanagement Division was given responsibility for controlling the central procurement function. Contracts for construction are handled by the City Engineering Division, the Airport Engineering Division and the Public Utilities Engineering Division for their respective agencies. Until three years ago, contracts for professional services and other miscellaneous types of service contracts were handled directly by the ages y requesting tie service. In 1985, the clam sicn was made to draw all contracting for profsicnal and other miscellaneous services under the PUrchasing umbrella, but staff was not provided for this purpose. THE TssU : Should the City continue with the contract centralization effort, or should the contract process remain decenLrdlized? ADNANTAGES OF CENTRALIZED CONTRACTING - One agency would be responsible for coordinating the contracting process. This would enable the central_agency to monitor and control contracts and reduce contractor frustration when inquiring u;r;ng about a contract. - One agency could guarantee budgetary control, verification of funding prior to release of payment and monitoring of contract compliance. - Procedures could be streamlined because of central control, thus improving response time while exercising adequate control. - We could ensure that contract terms and oond_iticns were used consis- tently, thus reducing the City's risk due to misinterpretation. - We would assign one contract number per contract. Contracts currently have a minimum of three separate numbers assigned; some have four numbers assigned. - We would provide departments automatic notification, prior to contract expiration. This will give assurance of timely contract renewal. - We would allow all departments inquiry capability on the central sysban, improving g acness, reducing inquiry time and reducing frustra- tion for City departmental personnel. Dislaxmlimms OF UNREALIZED CONTRACTING - With the current staffing level in the Purchasing and Property Manage- ment Division, centralized contracting is notsible. - Centralization of the contract function would require a significant increase in staff and work spruce in the division. - Centralization would require a major change in the current City practice, which allows any Department Dead to request preparation and signature of a contract directly. D CX' DEKINIEALIZED CONTRACTING - it is a violation of the current City Code, Section 3.24.050, B, which states that "The City's Chief Procurement Officer shall order and purchase supplies and contractual services needed by the City or any of its departments or division, including the Office of the Mayor, in accordance with City Ordinance and such policies and procedures adopted for the internal management and operation of such purchasing function." - Certain departments currently handle contracts directly. This planes the City at risk for the following reasons: 1. Many City contracts ere rot monitored properly. Contracts need to be nnnttoaed nine carefully and contractors should be audited from time to time. Some contracts are allowed to expire, leaving the department without essential contractual services. 2. Many departments do not follow specific guidelinesguidalineswhen soliciting proposals and many do rot solicit proposals at all. No doubt, we are paying a premium price for such contracts. 3. it is difficult to determine who is actually responsible for a given contract under the present system. In some rases, ro specific department will acknowledge responsibility for a contract. (Example: Ambulance contract) 4. Most departments do rot maintain adequate records of proposals, received. The law requires that they be available for public access. 5. Some contracts are signed by unauthorized individuals, are rot approved by the City Attorney and funding has rot been veri- fied. Such agreements are rot legal under City Ordinance. - Because ro central agency is actuallyresponsible for all contracts, the current contracting process is extremely slow and cumbersome. The average contract document must pass through a minimum of 39 steps before the Mayor signs it. Average processing time to complete the cycle,is 60 to 90 days. This is rot an acceptable turn around time to meet the City's operating requirements. If the proper equipment is made available, central control would reduce the number of steps re- quired and documents could be prepared and transmitted electronically. RECCMIENWICNS Phase One - Immediate Need. - Hire a full time secretary to support the existing Contract Sri alist and Assistant Contract Specialist in typing correspondence and contract documents. Phase Two - Action Requested July 1, 1989. - Take one of the two following steps: 1. Determine e that the City contracting process will remain decentralized. A. Revise the existing ordinance to reflect decision. B. Make Department Head responsible for certification of funding. C. Make Department Head responsible for monitoring contracts. 2. Determine that the City contracting process will be cenl.Lalized for processing. A. Hire two technical clerks to write specifications and handle the increased diexament flow. These employees would report to the Assistant Contract S1alist. B. Reprogram the computer system for cenUdlized control and budget checking. Phase Three - Action Requested December 1989. - Hire an Assistant Contract SpPci alist and a technical clerk to handle contract monitoring and training.. Additional secretarial assistance may also be required at this point. -2- ' t D PAUZIIMW DF Fes$ POLICY DISCUSSION INDERNAL AUDIT F(ICrIai: One of the main goals of the Dot of Finance is financial controls. The internal audit function is vital to insure that proper controls and procedures are in place and effective within the City. Internal auditing will be one of the major factors in providing more emphasis an financial controls. Currently the City's internal audit function is weak and insufficiently staffed. As a result, the Department of Finance is unable to ensure that internal controls are adequate, and we are unable to enhance or tighten controls. To be effective, internal auditing must be physically strengthened and independence quaranteed. We intend to use internal auditors to build, implement and strengthen managerial and internal controls. Internal auditing should serve as an organizational control as well as a link between management planning and operating performance. These goals can best be accomplished within the Finance organization assuming a mechanism is in place guaranteeing the necessary independence. THE ISSUE: The Finance Department's ability to tighten controls of the City's funds and programs is hampered by an inadequate internal audit program. TEED TO SIREAGTHEN INIERN AL AUDITIM : - Periodic internal control audits are particularly needed on the City's accounting and financial narci al systems (i.e. payroll, purchasing, accounts payable, investments, etc., ) and an controls surrounding the receiving of revenues, disbursing of funds, and the safeguarding of asa-Pts. Some financial auditing and financial statement preparation are also required to be performed by the internal audi LOLs (i.e. Sugar House Park Authority, Council of Governments, etc. ). The City's policies and procedures need to be reviewed to determine that appropriate internal controls are in place. In addition, internal audit.u. , should be involved with the designing of new accounting or financial systems. In order to accomplish all of these tasks additional audil&i5 are required. - Internal control audits provide information about the adequacy and effectiveness of the City's internal controls. In addition, economy, efficiency, and performance reviews are included to some degree with every internal audit. Although the primary responsibility of internal auditors is evaluating internal controls, these audits also include a review of the quality of performance in carrying out acsign*ed responsibilities. They provide analyses, appraisals, recxx men datians, counsel, and information concerning activities reviewed. - Performance and operational auditing frcliqes on determining whether the City is acquiring, protecting, and using its resources, including personnel, eoonamir i l y and efficiently, and determining g the causes of inefficiencies or uneconomical practices. These audits include pLu uting operational efficiency and erxxouraging adherence to prescribed managerial policies and City objectives. The City needs the ability to solve operational and management problems while they are small and manageable. Problems should not be left uncovered until the City Council chooses to conduct a management study. -3- • BECIONVENEATIONS: - In the short term, internal auditing can be strengthened by funding the vacant position, by providing assistance fruu budget staff, and by coordinating with others in the City with auditing responsibilities. However, it is important that an increase in the number of full-time auditors be considered. The City will save funds through cost avoidance in the long run by tightening controls and increased efficiencies. - The internal audit function should be located in Finance because the financial controls are the responsibility of the Finance Director. The materials, docents and many of the major financial controls are located in the Department of Finance. The Department of Finance has the expertise and additional experienced individuals to provide assistance. Locating internal auditing in the Department of Finance also allows for a blending of legislative and administrative intents. - Independence can be given to the internal audit functions through an approved charter which will establish an oversight or audit committee. The oversight committee provides authority, direction and possesses the power to implement corrective ao tibns. Individuals serving on the audit committee can include representatives from the Mayor's Office, City Council, citizens, and can include City Department Directors or other City employees with a particular expertise on an as-needed or rotation basis; - Our corrective actions which will begin immediately include improving monitoring and controls, and auditing those systems and controls with the most estimated risks. All written policies and procedures will be reviewed for the existence of adequate controls. After the written policies are reviewed and the initial priority audits have been completed (approximately tnately one year), the audit co mnittee will be established to independently direct the audit work plan. The committee will serve a reporting function and receive follow-up from departments when corrective action is recommended. The audit committee will also serve as an independent committee to resolve differences of opinion with respect to audit findings and recommendations, and to accept alternative corrective actions where appropriate. -4- V OPTIONS FOR RELOCATING THE MAIN LIBRARY OF THE SALT LAKE CITY PUBLIC LIBRARY SYSTEM Presented to: THE SALT LAKE CITY COUNC I L MARCH 14, 1989 TABLE OF CONTENTS INTRODUCTION 1 LIBRARY PLANNING CRITERIA 2 RELOCATION OPTIONS Block 57 3 Proposed Judicial and Government Center / Blocks 39 and 40 4 Use of the Current Facility if the Library Relocates 5 FUNDING 5 REMAINING IN THE CURRENT LOCATION 6 RECOMMENDATIONS 9 INTRODUCTION The City Council, at its December 15, 1988 meeting, requested that the City Library explore options for relocating the Main Library. The options recommended by the R/UDAT study are to relocate the Main Library either as a component of Block 57 or to the south side of a proposed Civic Center on Block 39 or Block 40. The R/UDAT team recommended the relocation options to meet current public service needs and allow for library expansion. Because the Library is a heavily used facility In the downtown area (over 500,000 people annually) relocation may also influence the economic development of an area. Public service needs for the Main Library focus on additional space requirements: adding storage for audio-visual materials, expanding patron seating, and Increasing the area for patron circulation activities. In addition to space and economic considerations, parking for library patrons has become a critical issue. With the renovation of the City/County building near completion and a proposed expansion of the County Jail facility, parking needs for the Main Library will become even more critical. During the past three months, the Library has worked with the architectural firm of Brixen and Christopher to develop planning criteria for a new building. The Library consulted with City, County and State officials to determine if the proposed R/UDAT locations meet the criteria developed for a new library. This report, approved by the Board of Directors of the City Library, . defines planning criteria for a new Main Library facility . discusses the suitability of each R/UDAT relocation option, and . presents a third option: to stay In our current location and expand the Library's ownership on the block. The planning criteria and options, presented in the report, are based upon: . the current downtown environment . the demand by citizens of Salt Lake City for high quality I ibrary service . increasing service and space expectations for the twenty-five year old Main Library, and . the patron parking crisis. With the current no-growth mandate affecting property tax increases, economic conditions do not warrant unnecessary expenditures of public funds. However, changing factors suggest that a reexamination of the capital plan for the Main Library is appropriate. ( 1 ) 3/14/89 LIBRARY PLANNING CRITERIA The following are suggested as planning criteria for a new downtown library facility to meet the informational needs of the citizens of Salt Lake City: . a 2.5 acre site . approximately 200,000 sq. ft. for the building . ground floor area of between 40,000 and 50,000 sq. ft. . underground parking--two levels, 63,000 sq. ft. per level (300 parking stalls). The facility would consist of a four or five story building that would house the services currently located In the Main Library. These services include: reference and material collections, circulation, communications, the computer room, cataloging, processing, maintenance, and administration. The planning criteria would allow for expanded space for library services and collections, dedicated underground patron parking and aesthetically appealing green space surrounding the building. SCHEMATIC AREA REQUIRED FOR A NEW MAIN LIBRARY • T'F1G•.1.L. 10 ES • • • 5 - -. . .I •2.5 qc� • F. . -�7 —— =j. (J09,000 sn) .. • I . ' ( • 40,0a0 Sr=..rc'R'wMT + Tom- irre: SF_colat1iJT._• .�_ • I 303.000 5.t/Level fP,RKI d UNDE4GROUJ p • ;• i �2'L�1IEl.5) • - ( 2 ) 3/14/89 RELOCATION OPTIONS Block 57 In conversations with Mike Chitwood, Director of the Redevelopment Agency, it was determined that a Block 57 location may be advantageous for the City since the Main Library could bring more people Into the central business district, provide better library service to the downtown area, and Influence economic growth. A well-designed library building with significant green space and underground parking could stimulate the economy of the surrounding area and possibly function as a pivotal site for developers considering construction of other quality buildings in the area. Mr. Chitwood indicated that the best potential location for the library on Block 57 would be in the southeast corner of the block, adjacent to the Brooks Arcade. The RDA could assist with land acquisition and Infrastructure improvements for a library facility. The proposed site is approximately one quarter block. SCHEMATIC PLAN FOR NEW MAIN LIBRARY. BLOCK 57 //7 , / ' -/="' ::k., ,/ //,/ '. . / . .. ,. & r,N-\ ) / y! -• ;to)! pre& fr / . .l /: . �%. PJ . . ,,,, ' I 1.. c.00o'5.r. . 1 • Phmr..n4& 1 - rl}N7. Lav rt.oUNo ' (Z I.EVEl.S) < N ` _I. . . ,,- -....:." itiincxez r‘pk%. V_Y I' . 1 :g./.,4 MPS em 1 .. JIMIFit _____ -L__:___A___. -/- ' Many individual property owners remain on Block 57. Legal proceedings and development negotiations are major issues which influence planning for the block. Since uncertainty surrounds development of the block and the area suggested Is not large enough to meet proposed site requirements for a new library, a Block 57 location may not be suitable under current conditions. ( 3 ) 3/14/89 Proposed Judicial and Government Center / Blocks 39 and 40 A December 11, 1988 article In the Deseret News cited the development of a southern downtown anchor as among the most significant recommendations made by the R/UDAT team. The R/UDAT team named the area the Judicial and Government Center District. The area includes Blocks 39 and 40. BORDERS OF THE JUDICIAL AND GOVERMENT CENTER DISTRICT 1.. NEW .. I .. _- I.' PARKING 5} .. 1 STRUCTURE (i '• .i LAr CIITR1CT�'',,: — .- Z — I 85 •, • _.?• I TEMPLE SQUARE.... _ . • $p( C gICONVENTIGN ' 341 i!tg,__ � _1 ' i ;8 EW ARENA`.. 1,..ESPANSON CCNMENTICN1 1; SH9dEING I o 'fr-E- t 11_sg•.\79 „it L_ -DlBT CT..1 -- oigrCT 1 I°• ^Jul-• i �I --'7 .. - I. ..• a�.1 __-•11a_ r•I_-1I --• —I _ II$ALr PALACE 11.-- 1•-f.I 17 1 +— .}n I----------Z--_._.J.` � 1 _ _� lee.R.... 11�' I _ —u. 1 _ ��MUS@UMZ77 5�7L �7L r��^ . I! `-C7C;GNail&I'ENERTAINRfENVaLUBICT :jam`�� _..9 ` ' III 11 1 — • IZ . , : _ =i -;r— —1 ems—_ i _ ,I, _ .1 . ' .. s. F�. .. .. —� Lam. __ I i _. ;I C��' ; -- 7.17-1 — I �� to•1=,.NTQ..W(.�1'II. _ �� ` rIr • I - CdJRT HOUSE" U. ! ii :1 C 3 I •--��y31--� am„m3 t DILDING, �'UDM1TW.gi' 1C B DI 1 T' r . I • 1 — � . .T. a: 7 _ -. 'I.. ), — . - -- -- —_ =-9 - .. ....-- 1.'• • I 11 H gLLIBRARY Source: Salt Lake R/IMDAT, Our Downtown Future, p. 38, 1988. ( 4 ) 3/14/89 The State Court Administrators Office received funding from the 1989 Legislature to conduct a feasibility study for a multi-building Courts Complex proposed for the Judicial and Government Center District. A Courts Complex may Include the courts housed In the Hall of Justice and the Third Judicial Circuit Court now on the same block as the Main Library. A new Main Library In the Judicial and Government Center District offers several advantages: space to construct a 200,000 sq. ft. building with adequate green space, proximity to the City/County Building, prominence as a major governmental facility, and excellent access to public transportation. Further research on this option may depend upon the findings of the State Courts Complex feasibility study. Use of the Current Facility If the Library Relocates The disposition of the current facility Is an overriding concern in considering the relocation of the Main Library. The open design of the building suggests continued use of the facility for a similar function: a museum, an art gallery, or another function that requires large public spaces. Informal inquiries have been made concerning potential uses for the building if the Main Library is relocated. FUNDING The cost to build a new Main Library is estimated to be $25,000,000. Building: 200,000 s.f. ® $95/s.f. $19,000,000 Parking Below Grade: 126,000 s.f. (300 cars) @ $30/s.f. ($12,600/car) 3,780,000 Site Development: 59,000 s.f. @ $16/s.f. 944,000 Land Acquisition: 2.5 acres (109,000 s.f) t� $15-18/s.f.(?) 1,635,000 or 1,962,000 The $25,000,000 does not include other costs such as professional fees or furnishings. In looking at the options for financing a new Main Library, a bond election appears most viable. ( 5 ) 3/14/89 REMAINING IN THE CURRENT LOCATION In 1964, the goal of the builders of the Main Library was to construct a building that would last for twenty-five years. Expansion plans were to add two upper stories to the structure. However, current seismic regulations prohibit additional vertical expansion without first retrofitting the building to comply with those regulations. As was noted in the 1988 Capital Improvements Plan, costs to retrofit the Main Library building appear to be in excess of ten million dollars. Without the ability to add upper stories, the Library's option for adding space to the current facility is limited. However, the Library can look beyond its own location on the block for expansion possibilities. The eastern side of the block Is committed to the Hall of Justice and the County Jail complex. If an invisible line was drawn down the center of the plaza on the block, the western half of the plaza offers the opportunity for a single owner to develop the area which would complement the City/County Building and Washington Square. If interest continues to build a Courts Complex In the Judicial and Government Center District and the Third Judicial Circuit Court moves from the Library's block, the option to stay in the current location becomes more appealing. The City has an opportunity to revitalize and give a new life to the plaza area through Library ownership of the Third Judicial Circuit Court Building and the parking garage on the northwest corner of the block. Expanded ownership would provide the opportunity for: . relocation of Administrative and Technical Services of the City Library to a renovated Courts Building . creation of additional space needed to expand patron services in the current building and allow for long- term growth for public services . addition of office space In the renovated Courts Building for City offices or other occupants . acquisition of dedicated parking for Library patrons in the parking garage on the northwest corner of the block, which would ease the parking crisis. ( 6 ) 3/14/89 SCHEMATIC PLAN FOR MAIN LIBRARY EXPANSION TO COURTS BUILDING \\I\ /�CISTI iy G \ \\„. , . 1--, • •• - • • • • . •. • . . • . • . - . • • • • • - . bclsTlNo • - �us1IN& LiIB ter`' • .' MtkIN I��RtVNC� MxF 1crl • . LIC4V\IK ' BRAMX. PLPCZA\ • P0.11Seri, • I vS-oPMeNT /76. ( 7 ) 3/14/89 If the Third Judicial Circuit Court does not move out of its current facility, there Is another option for expanding library facilities at the current location. That option Is to build another library building on the plaza northeast of the Main Library. An additional library facility on the block would enable the Library to design the building for library-related functions. An additional Library building would also be a major component In linking the plaza with Washington Square and the City/County Building. This Library facility would house Administrative and Technical Services and some specialized public services located in the current Main Library. SCHEMATIC PLAN FOR ADDITIONAL LIBRARY FACILITY ON THE PLAZA • c------t \ \ ' . • \,,\,\ 'LI12DRA.mr• . • . `xPA,rtiorl . - . • �lSrinc/ _�4'6 '1 bct-..rilNo rNc•c..iN& ' ..u1" • . Mil',lN .rJslEb1-� • u�t T S • P:-,4ZA Ftrr rc.E." �vs=-oPMe.t.•IT oT7 Lilts ' ' /4 • (P • \ ( 8 ) 3/14/89 RECOMMENDATIONS Planning for funding either a new relocated Main Library or the expansion of library facilities on the current block requires thoughtful preparation to obtain community support. There are many unanswered questions about each of the options discussed In this report. More advantageous conditions for library relocation may develop on Block 57 or In the Judicial and Government Center District. The acquisition of the Courts Building is contingent upon the relocation of the courts to another site. The feasibility of constructing an additional library facility on the plaza has not been explored. The Library Board of Directors supports staying in our current location If possible. The Library requests the City Councii's approval of the single owner concept for the western half of the block either through future Library ownership of the Third Judicial Court Building and the parking garage or through the Library's construction of a second building on the plaza and adding patron parking. Solving our space and parking problems through acquisition and renovation of the Courts Building and parking garage, or through building a second Library facility on the plaza and adding patron parking, retains the suitability of the current Main Library. Expansion on the plaza offers the potential for the City to revitalize the area and provides a reasonable alternative to funding a new Main Library at a different location. ( 9 ) 3/14/89 • SAIT I AKE'GITY-GORPORATIO • DEPARTMENT OF DEVELOPMENT SERVICES CRAIG E. PETERSON 114 CITY AND COUNTY BUILDING 01PECTOR SALT LAKE CITY. UTAH 84111. 535-7777 • TO: Salt Lake City Council November 15, 1988 RE: Petition No. 400-537-88 submitted by Salt Lake City Corporation Recommendation: That the City Council adopt the attached resolution accepting Petition No. 400-537-87 for the purpose of City Council Review. We further recommend that the City Council hold a public hearing on January 17, 1988 at 6:20 p.m. to discuss Petition No. 400-537 submitted by Salt Lake City Corporation which requests that City Creek Canyon be annexed into Salt Lake City. • • Availability of Funds: Not applicable, Discussion and Background: Salt Lake City,has initiated annexation of this area to assure that Salt Lake City will have more control over the • watershed, and direct control over any land use issues that may arise in the canyon in future years. The Planning Commission has reviewed this petition and has recommended that the area be annexed and be zoned "P-1" Foothill Preservation Zone be applied to the entire area. Legislative Documents: The•City Attorney's Office has prepared the • necessary resolution and is ready for your action. Submitted by: CRAIG E. /5ThRSCN -.... Director If/ , SALT LAKE CITY AMENDMENT TO MASTER ANNEXATION POLICY DECLARATION CITY CREEK AMENDMEIr Area 15 - City Creek . • • Prepared by Salt Lake City Planning Department Introduction The following information is provided to satisfy requirements of the Utah Boundary Commission Act of 1979 as set forth in Section 10-2-401 through 10-2- 423 Utah Ccde Annotated 1953, as amended. In harmony with the intent of the act, Salt Lake City prepared a Master Annexation Policy Declaration in 1979. The City Creek amendment was not included in the 1979 policy declaration. This report updates and amends the . Master Annexation Policy Declaration to include the proposed City Creek annexation area, as Area .15 - City Creek. City Creek Canyon has been preserved in its natural state as a watershed area for Salt Lake City through the years. The only structures in the canyon are the water treatment plant, a reservoir, and the watershed caretaker's home. Salt Lake City is a major property owner in the canyon. However, . since the canyon is not within the city's corporate boundaries, Salt Lake City doesn't have zoning and land use control. Because such a large majority of the canyon is caned by Salt Lake City and the U.S. Forest Service, significant development in the canyon is not likely in the foreseeable future. However, annexation will give the city direct land use control, and greater • control over any future proposals for the canyon that maybe prompted by changes in ownership, Forest Service lam management policies, etc. • ' In Peril 1986, the Salt Lake City Council adopted the City Creek Master Plan. This plan identifies the city's planning goals and policies regarding the area of proposed annexation. A major planning goal outlined in the City Creek Plan is to preserve City Creek Canyon in its natural state as a protected watershed area and for limited recreation. It recommends that the city pursue annexation of City Creek Canyon as one of the means of implementing the plan. Annexation will enable the city to have more control in protecting the watershed and obtaining more direct control over any land use issues that may arise in the area in the future. 15.1 Area Considered for Annexation The attached map depicts the proposed annexation area. It includes unincorporated land contiguous to Salt Lake City's northeastern boundary within census tract 1101.01. The area consists of approximately 5,568 acres. • 15.2 Land Use and Socio—Economic Characteristics 17, The proposed annexation area is primarily alpine forest and woodlands in . public ownership. The two major land owners are the United States Forest Service and Salt Lake City Corporation. All of the property considered for annexation lies within the watershed of City Creek and is within Salt Lake County. The one privately owned parcel is the Woodruff mining claim. This claim lies within Sections 1 and 12 of TIN, R1E of the Salt Lake Base Meridian. 15.3 Assessed Property Value The County Assessor's records show no assessed property value for the annexation area. The publicly owned land is exempt from local taxing jurisdictions. The mining claim has a special Utah State property tax • assessment of fifty dollars per acre. 15.4 Cornarison of the Cost of Government Services The mining claim would not be affected by any change in local jurisdiction. The tax rate of fifty dollars per acre would remain the same. It is also the intent of the city to eventually obtain ownership of all properties within this annexation. The City Public Utilities Department is ' presently negotiating with Mr. Woodruff to purchase his mining claim. Due to the amount of publicly awned land, and the existing policies prohibiting development in this area, annexation will have minimal or no impact on the cost of government services. There are no government services being provided to the mining claim. • • 15.5 Urban Services ' Urban services such as streets, water and sewer systems, and refuse . collection are not available to this area. Upon annexation into Salt Lake City such services will not be made available. The City Creek drainage area must be protected from any development to protect the areas primary benefit to the citizens of Salt Lake as a watershed for culinary water resources. Y SALT LAKE CITY PLANNING CCMMISSION STAFF REPORT ' REGARDING PETITION NO. 400-537 BY SALT LAKE CITY yj CORPORATION REQUESTING THAT SALT LAKE CITY ANNEX A PORTION'OF CITY CREEK CANYON This petition requests that the majority of City Creek Canyon be annexed into Salt Lake City. This portion of the canyon is presently in unincorporated • Salt Lake County. Properties encompassed by this petition are owned by Salt Lake City Corporation, the U.S. Forest Service, and a patented mining claim owned by Mr. Russel Woodruff. The Forest Service and Mr. Woodruff have both Provided letters concurring with this annexation proposal. • The Salt Lake City Planning Commission and City Council adopted the City Creek "aster Plan in 1986.. A major planning goal outlined in the City Creek Plan is to preserve City Creek Canyon in its natural state as a protected watershed area and for limited recreation. It recommends annexation of City Creek Canyon as one of the means of implementing the plan. Annexation will enable the city to have more control in protecting the watershed, and more direct regulation over any land use issues that may,arise in the area in the future. Cicy Creek Canyon has been preserved in its natural state as a watershed area for Salt Lake City through the years. The only structures in the canyon are • the water treatment plant, a reservoir, and the watershed caretaker's home. • Salt Lake City is a major property owner in the canyon. However, since the canyon is not within the city's corporate boundaries, Salt Lake City doesn't have zoning and land use control. Eecause such a large majority of the canyon is owned by Salt Lake City and the U.S. Forest Service, significant develcpr..enc in the canyon is not likely in'the foreseeable future. However, annexation will give the city direct land use control, and greater control o.-er any future proposals for the canyon'that may be prompted.by changes in ownership, Forest Service land management policies, etc. This petition does not encompass all of the canyon*. Private property owners at the top of the canyon would not agree to support annexation so their properties were not included. The Public Utilities Department indicates that we are accomplishing their watershed objectives by annexing the large majority of the canyon as proposed. They envision eventually purchasing private properties in the upper canyon. These properties are also not accessible or evelopeble, and therefore pose no threat to the'watershed. Other City departments reviewing this annexation proposal support the po petition as presented. Therefore, the planning staff recommends that this petition be approved as proposed. 7-15-87 EN *NOTE: A map identifying City Creek Canyon and the areas to be annexed will fM_ be presented at the Planning Commission briefing. Eecause of their size, it was not practical to reproduce maps for this packet. k VERNON F. JORGENSEN • MEMBERS: PLANNING DIRECTOR Tjr� 7{•�� S' lf' ♦ ��@H 1(GO.11lO THOMASC A. SAISON MILDRED G. SNIDER a p t I � �� .ALICE KASAI SECRETARY ""'"'�"r ma^" ....viola my.. j"A`��r.o•. . LAVONE LIDDLE.GAMONAL EX.OFFICtO MEMBERS: DEPARTMENT OF DEVELOPMENT SERVICES RALPH P. NEILSON LATUS "A' Planning andZoningCommissionWILLIAM R OF SALT LAKE CITY GEORGE PRICE CITY ENGINEER 324 SOUTH STATE STREET, ROOM 200 JOHN-M. SCHUMANN CITY TRAFFIC ENGINEER - SALT LAKE CITY. UTAH 84111 F. KEITH STEPAN CITY BUILDING OFFICIAL 535-7757 PETER VANALSTYNE KATHY WACKER • I. J. WAGNER July 28, 1987 Mayor Palmer DePaulis • BUILDING - • Dear Mayor DePaulis : Returned herewith is Petition No.' 400-537 by Salt Lake City Corporation req:.Iesting that Salt Lake City annex the majority of City Creek Canyon. The City is initiating annexation of this area to assure that the City will have more control over the watershed, and direct• control over any land use issues that may arise in the canyon in future years. The City is initiating this petition as a major property owner in the canyon. The Planning Commission considered this petition at the July 23, 1987 Planning Commission meeting. The Planning Commission recommends annexing this area as proposed, with "P-1" Foothill Preservation Zoning being applied to the entire area. Respectfully,p . 7 Vernon Jorgense"n/ . Director VJ/BW:vs • y . S1 iZR F. CUTLER SALT r wt (�.,��P Tvir g I ��0 t ASSISTANT ATTORNEYS C::Y ATTORNEY .••••• � �jw,`w��v'�i �+ �W�� + RAY L MONTGOMERY CHEZYL D. LUKE LAW DEPARTMENT GREG R. HAWKINS LARRY V. SPENDLOVE CITY PROSECUTOR 324 SOUTH STATE. FIFTH FLOOR STEVEN W. ALLRED SALT LAKE CITY, UTAH 84111 BRUCE R. BAIRD (801) 535-7788 FRANK M. NAKAMURA ASSISTANT PROSECUTORS JOHN N. SPIKES May 11, 1987 DONALD L. GEORGE ARTHUR L KEESLER. JR. CECELIA M. ESPENOZA Brent B. Wilde Planner III Planning & Zoning Department 324 South State, Room 200 Salt Lake City , Utah 84111 Re : City Creek Annexation Dear Brent: I have reviewed the supporting documentation which you provided concerning the City, Creek Annexation . While not a standard annexation, I believe the ,requirements of . Section • 10-2-1, et seq. , Utah Code Ann . , have been sufficiently ccrnolied wi th to allow the annexation to take place upon ccmpletion of the proper procedure , including approval of the amendment, public notice and hearings, etc . My only suggestion would be that the policy declaration amendment be strengthened slightly in stating the reasons why the property should be annexed . Wi th that minor addition I would agree that the matter should be submitted to the Mayor to institute the petition for annexation. If you have any questions, please call . Sincerely, ' CE P. RD Assist nt City Attorney BRB :rc47 • • • L�'le'Te.. ' r i' ®•��our G o RP '�• �I.ON( 1 1U .ten,....e..at .✓..a.a..+.. �Jw..n..�w.a.r r-r.��,� LEROY W. HOOTON. JR. DIRECTOR DEPARTMENT OF PUBLIC UTILITIES JOSEPH S. FENTON WATER SUPPLY & WATERWORKS PALMER DEPAULIS ,Z•C.INTENDENT, WATER RECLAMATION WATER RECLAMATION MAYOR WENDELL E. Ev:NSEN. P.E. 1530 SOUTH WEST TEMPLE SUPLRINTENDENT SALT LAKE CITY. UTAH 84115 w.TER SUPP,Y A WATERWORKS June 22 , 1987 Doug Wheelwright Planning & Zoning 324 South State Street Salt Lake City , Utah 84111 RE : PETITION NO . 400-537 , CITY CREEK ANNEXATION Dear Brent : • • This department has been favorable to the annexation of City Creek Canyon for a long time . • We concur with you that this annexation is necessary to protect the watershed and preserve the canyon in its natural • state . We warmly endorse the annexation of City Creek Canyon at this time . If we can be of any further assistance , please call Mir . Vince Houtz at 483-6725 . Sincerely , • • LER Y W . HOOT N , J Di rector UIH/co FR0MS : 6 SALT BAIM CITY GORPORATIOI FIRE DEPARTMENT • =°-ER 0. PEDERSON 159 EAST 1sT SOUTH EF OF FIRE DEPARTMENT SALT LAKE CITY, UTAH 84111 530.51O1 June 18, 1987 Brent Wilde Planning and Zoning Salt Lake City, Ut 84111 - Dear Brent: I have reviewed Petition No.400-537 requesting_ arnexation of City Creek Canyon. • The Salt Lake City Fire Department would not object-to this canyon being annexed into the city. - As you are well aware it is difficult for us to provide fire and medical service into this area. If the canyon were to be developed this would have to be addressed. • If I can be of further assistance, please call me. Sincerely, / --�� Larry D. Coates Deputy Fire Marshal. LDC/jm • sair ` _;Curt%RR R ;I.ONi TRANSPORTATION ENGINEERING .4Lv ER cEFAUu=_ • 333 SOUTH 200 EAST. SUITE 201 MAYGR SALT LAKE CITY. UTAH 84111 •105EFH R.AN[IEft:CN (801) 538•2142 PUBLIC WOPBS oiREC7OR • June 17, 1987 Brent Wilde Planning and Zoning . 324 South State, 2nd Floor Salt Lake City, Utah 84111 Re: Petition No. 400-537 Annexation of City Creek Canyon Dear Brent: The present signage and markingf for the City Creek Canyon Road is . suffi.cient for, the restricted usage that is now employed. If, at anytime, the traffic usage does not continue to be restricted by the locked gate at the Canyon entrance, we would recommend a study be conducted by our office to determine the necessary regulatory and warning signs needed due to the anticipated increase in traffic volume. The 'P-1' Foothill Preservation Zoning will help alleviate the possibility of any future increase in traffic volume and the likelihood of needing additional signage. Please call me. if you have any questions or concerns. Sincerely, • • /&311 John.G. Van Hoff, L.S. Traffic Engineer I JGVH/sc cc: Steve MeyerAS/r'.- Rick Johnston Eric Thorpe • LeRoy Hooton Larry Coates Allen Johnson • • • • • FINANCE DEPARTMENT _:.NCE R. BATEMAN, CPA Purchasing and Property Management Division PALMER DEPAULIS O:RECTOR OF FINANCE 324 SOUTH STATE STREET MAYOR 5TH FLOOR SALT LAKE CITY, UTAH 84111 PURCHASING (801) 535-7661 PROPERTY 535-7133 June 26, 1987 • TO: Brent Wilde • • • Planning & Zoning • FROM: Eric H. Thorpe Property Manager25p2( • RE: PETITION NO: 400-537, ANNEXATION OF CITY CREEK CANYON • • Property Management is in favor of both the annexation and proposed "P-1" zoning. Please contact me if you have any questions. EHT/jg • • cc: G. L. Failner • S°_ � r e \;CITY enRPO �I.OI LEROY W. MOO i ON. JR. �..r.sw `+parr �.0' - DEPARTMENT OF PUBLIC UTILITIES JOSEPH S. FENTON WATER SUPPLY & WATERWORKS PALMER DEPAULIS SUPERINTENDENT. WATER RECLAMATION WATER RECLAMATION MAYOR WENDELL E. EVENSEN, P.E. 1530 SOUTH WEST TEMPLE SUPERINTENDENT SALT LAKE CITY. UTAH 84115 • WATER SUPPLY R WATERWORKS November 3 , 1986 Mr. Brent Wilde 414 City and County Building Salt Lake City, UT 84111 Dear Mr. Wilde : Will you please process the enclosed map for the proposed • City Creek annexation to 'Salt Lake City. We are .also transmitting several other maps having information regarding this annexation that you may be retained or disposed of . If we .can -be of any further assistance please contact Michelle Forsyth at 483-6770 . We appreciate your cooperation with our department on this project. • Sincerely ( . 41 A J-11-.70 ',Ja-czA----„, LEROY-WI HOOTON, `JR Director • LWH: ETD:mf 75 : 45 ' • • • � I • DEPARTMENT OF PUBLIC WORKS RALMER DEPAULIS City Engineering Division MAX G. PETERSON. P.E. MAYOR 444 SOUTH STATE STREET CITY ENGINEER SALT LAKE CITY. UTAH 84111 535-7871 . TO : BRENT WILDE , PLANNING & ZONING 1 FROM: RICHARD A. JOHNSTON, DEPUTY CITY ENGINEER� � DATE : DUNE 24 , 1987 SUBJECT : PETITION NO . 400-537 - ANNEXATION OF CITY CREEK CANYON • • We have reviewed the above mentioned annexation and boundry .description , and agree with said description , as well as comments from your office . We also agree with the proposed P- 1 Foothill Preservation Zoning for this area . • • RAJ : LRR : po cc : Vault • < Wasatch-Cache Salt `!.vI,e Ranger District United States Fore':;Service National 6944 South 3000 East Department of • Agriculture Forest Salt Lake City, Ut. 84121 Retay to. 5430 �a • Date January 27, 1987 Salt Lake City Corporation Planning and Zoning Commission 414 City and County Building Salt Lake City, UT 84111 Attention: Vernon Jorgensen Dear Mr. Jorgensen: Reference is made to your January 7, 1987 letter in regard to the City Creek annexation effort. I have since received the map which was not attached to your original letter. We have also reviewed the proposal with our lands staff at the Forest Supervisor's Office. After reviewing Salt Lake City's proposal we can see. no reason to object to this annexation. However, we prefer to not sign the petition or provide a letter of support since there appears to be no effect on administration of National Forest lands, with or without annexation. Management objectives • of both the City and the Forest Service have long been to preserve the canyon as a watershed with limited recreation. We do not envision any change in those objectives. This is true even if we pursue a land exchange. to con- solidate land jurisdictions. Please contact me if you have any questions or comments. We appreciate the opportunity to participate in this proposal. Sincerely, • • RICHARD P. KLINE District Forest Ranger • r44C• ; UNITED STATES NATIONAL BANK OF OREGON A Subsidiary of U.S.Bancorp- TRUST GROUP 321 S.W. SIXTH AVENUE P.O. BOX 3168. PORTLAND. OREGON 97208 April 20, 1987 Mr. Brent B. WiTde Salt Lake City Planning Commission 324 S. State St. , Rm. 200 Salt Lake City, UT 84111 Dear Mr. Wilde: 1333600 Woodruff Susan W. Emery and Russell K. Woodruff, Jr. , act as co-trustees under the Last Will and Testament of Russell K. Woodruff, deceased. Assets of the trust include four patented mining claims located in the Hot Springs Mining District/City Creek Canyon of. Salt Lake County. The claims are described as follows: - Henry Lode, Lot 38, Lawrence Lode, Lot 39, Eureka • Lode, Lot 40, General Scott Lode, Lot 37 By letter dated May 16, 1986 and through subsequent telephone conversations you have advised the Salt Lake City corporation is in the process of annexing a portion of City Creek Canyon, including the lands covered by the mining claims mentioned above. This letter is written at the direction of Susan W. Emery and Russell • K. Woodruff, Jr. , co-trustees, to indicate their approval and acceptance of those annexation efforts . Very truly yours, • H . E. Fedler • Vice President HEF:n11 :883 • c : Ms . Susan W. Emery P. 0. Box 818 Portland, OR 97207-0818 c: Mr. Russel K. Woodruff, Jr. • 1824 N.E. 137th Avenue Portland, OR 97230 :1 -a .i VERNON F. JORGENSEN MEMBERS: PLANNING CIRECTCR THOMAS A. ELLISONt,'1 l� � ,, �, TY�0mR �O I,@NI ALICE KASAI MILCRED G. SNIDER .er.....r.r .� ��..►a W,,�r,,,,."� �.r,. . LAVONE LIDDLE-GAMONAL SECRETARY RALPH P. NEILSON EX•OFFICIO MEMBERS: DEPARTMENT OF DEVELOPMENT SERVICES GEORGE NICOLATUS tAYOR OF_SALT LAKE CITY Planning and Zoning Commission WILLIAM PRICE CITY ENGINEER 324 SOUTH STATE STREET, ROOM 200 • JOHN M. SCHUMANN C:TY TRAFFIC ENGINEER SALT LAKE CITY, UTAH 84111 F. KEITH STEPAN CITY BUILDING OFFICIAL 535-7757 PETER VANALSTYNE . KATHY WACKER I. J. WAGNER May 18, 1987 The Honorable Palmer DePaulis • Mayor of Salt Lake City • 324 South State Street, Suite 500 Salt Lake City, Utah 84111 - Dear Mayor DePaulis: • I hereby respectfully request that the City initiate the process of annexing the majority of City Creek Canyon into Salt Lake City. Areas to be annexed are identified on the attached plat. . • The City Creek Canyon Master Plan recommends annexing City Creek Canyon so that the City will have more control over the watershed, and direct control over any land use issues that may arise in the canyon in future years. During the process of adopting the City Creek Master Plan, there was considerable interest expressed in annexing this area. At that time, Craig Peterson directed the planning staff to prepare an Annexation Policy Declaration and to take other steps necessary to facilitate annexation. Salt Lake City and the U. S. Forest Service are the only property owners in the area to be- annexed. There is also one private patented mining claim owned by Mr. Russel Woodruff and others. Enclosed are a copy of the annexation policy declaration, the annexation plat, and letters from the Forest Service and Mr. Woodruff indicating that they have no objections to this annexation proposal . We• have also included a letter from Bruce Baird, Assistant City Attorney. Bruce has reviewed the enclosed information and indicates that everything is in order. We have also strengthened the Policy Declaration as Bruce suggested. Therefore, I recommend that we put this proposal in petition form and route it through the regular petition process for review and approval . • S r PALMER OEPAULIS w ` E F •� V �• t) D ••• MAYOR OFFICE OF THE MAYOR 324 SOUTH STATE STREET FIFTH FLOOR, SUITE 500 SALT LAKE CITY, UTAH 84111 5 35-7704 • May 18, 1987 Allen C. Johnson • • Deputy Planning Director • . Salt Lake City Planning & Zoning 324 South State Street, Room 200 Salt Lake City, Utah • 84111 • Dear Mr. Johnson: • Thank you for the information on annexation of City Creek Canyon. I concur with the proposal to proceed with annexation of City Creek Canyon as outlined in your letter of May 18, 1987. I am very supportive of • policies and recommendations outlined in the City Creek Canyon Master Plan and I look forward to having this area annexed into the City. Sincerely, 2 • f� 6 auk • • Mayor . • • PD/dll i .... , .r CITY C iii, K \ o o, „..., 0 ��,,,t4kEci.,„G44 —Rimpr-'---- , . . . . . . _.4 . . . _ - An early autumn view of a meadow in the upper City Creek Canyon.The close proximity of the canyon to a major metropolitan city is a unique amenity for Salt Lake City residents. Introduction use of the vast undeveloped properties extending to the •Preserve City Creek Canyon above Memory Grove for 111�0 UCt1�I1 head of the canyon.This study analyzes these issues and watershed,and limited public recreation; identifies policies and implementation strategies to direct •Promote the"City Creek Park"concept for the entire land use,growth and development in the study area. canyon.Areas extending into the canyon from the formally maintained park should be maintained in their Planning Goal natural state,much as they are today,with only minimal improvements to enhance recreation opportunities, Purpose City Creek Canyon should serve as a valuable stabilize hillsides and define public/private property • HE City Creek Plan addresses land use watershed and recreation/open space amenity of city-wide boundaries in areas near the mouth of the canyon. City Creek significance.These uses should take precedence over and circulation issues in the Canyon study area.The study area other land use alternatives. extends from the North Temple-State Contents Street intersection to the top of City Planning Policies Creek Canyon.The area encompasses The following Policies are recommended forCreek the residential pocket along Canyon 8City Introduction 1 Road,Memory Grove Park,as well as the entire Canyon: Purpose 1 • undeveloped canyon. •Preserve the historic Canyon Road residential pocket Planning Goal 1 Issues include the future of the older homes in the and formal Memory Grove Park to depict the city's Canyon Road area,improvement needs and expansion heritage,and as a link between the Central Business Planning Policies 1 policy for Memory Grove Park,and policies regarding the District(CBD)and the upper canyon; General Background 2 Physical Characteristics 2 CITY CREEK Ownership and Jurisdictional Patterns 2 CANYON / History of the Canyon 2 Role of the Canyon as a Water Resource 2 4 \ _ Ottinger Hall 2 CAPITOL Memorial House Reception Center 2 HILL NORTHWESTCity Creek Plan 2 AVENUES 2 City Creek Park Proposal }L NORTHWEST IF-- QUADRANT Memory Grove-Canyon Road Area 2 Traffic and Circulation 5 CETWL BENCH City Creek Canyon above Bonneville Blvd 6 WESTSIDE CITY City Service Issues 7 j, Police Protection 7 2100 SOUTH SUGAR HOUSE Canyon Maintenance 7 Summary 7 Capital Improvement Program 7 homes are those that have been documented as J blibtar... contributing to the historic/architectural significance of the district).The Canyon Road/Memory Grove area is also 0`scil encompassed by the Salt Lake City Avenues and Capitol 4 4 l. Hill Historic Districts. r 7 irMemory Grove and the quaint Canyon Road homes mr, haverlmaintained much of the,character aftwablocks d from the ��u l �m*ice Saltyake CenTheiralBusin,onlyaict,sucgsfromthe ___Pails courm �� "- Rom' Salt Lake City Central Business District,is unique.They SALT LAKE CT' i,I"" are somewhat isolated from the bustle of city life in the ,,` - . M— mouth of the canyon yet they are only a short walk from .�t� the city center. difflpTikalrakiPrr . � Role of the Canyon .� ll J Ownership as a Water Resource �� Salt Lake CityWater from City Creek was used by the first pioneers .(� _ entering the Salt Lake Valley,and has been used ♦ l�� •_i + . g; Wasatch National Forest continuously since.City Creek has been a very reliable stU asso.:"s.. water source through the years,supplying 10 to 15 per e_41.1 1 .... iarl•fi �, 1 j g Private cent of the city's water.The water quality is excellent as _ •-•ss. r.0•oaten well.The City Creek water supply presently serves the Avenues Community,Ensign Downs Neighborhood and the Central Business District.Without the City Creek General Background History of the Canyon water supply,water would have to be pumped to the Ensign Downs and Upper Avenues neighborhoods. The Mormon pioneers camped at the mouth of City The City Creek water supply is unique in that City Creek Canyon when they first came to the Salt Lake Creek is the only canyon along the Salt Lake Valley that Valley.They selected this area because City Creek is not affected by faults.If the Wasatch front is hit by a provided a good source of water for drinking and irrigation. major earthquake,City Creek could conceivably be the In 1857,the area at the mouth of the canyon was deeded only water source in operable condition. to Brigham Young by the territorial legislature and he used Future water system improvement proposals include the creek to power a sawmill and a flour mill.The L.D.S. Physical Characteristics the possible construction of a new reservoir in the upper ITY Creek Canyon extends approxi- Church Relief Society also had a silk plant in the area. canyon,and reconstructing the existing Pleasant Valley Yo In the 1860's and 1870's Brigham Young gave and sold reservoir. mately ten miles in a north-easterly sections of the area to members of his family and friends. Additional reservoir capacity in the upper canyon will direction from the city center.The Several of these people built homes in the lower Memory significantly Coe elevation increases from approximately Grove vicinity. cnt increase ande snowwaoer supply and the potential 4500 feet above sea level at the can n for drainage.g Decisionseg storm and ingrun-off in the City Creek canyon The city acquired sections of the canyon(Memory regarding the development of a new entrance to nearly 9000 feet at the head Grove area),in 1902,and the city council passed a reservoir have not been made.Officials generally agree, of the canyon.Vegetation in the bottom resolution that same year proposing that the canyon be however,that some type of additional water storage facility of the canyon is a combination of lush trees,shrubs and developed into a park.The first park improvements did in upper City Creek may be needed. grasses.Vegetation on the sloping canyon sides ranges not occur until 1914 when the city planted some trees. The Pleasant Valley Reservoir is in need of major from grasses and sparse oak in the lower slopes to dense Major park improvements didn't occur until after World to conifers near the canyon head.There are also numerous War I.At that time the Service Star Legion,an organization repair.The Department acimy in of presentPub Utilitiesm. proposes improved areas of rock out-croppings and slides in the upper areasa reconstruct facilitywillnot avf a substantially its different The ppearanc of the canyon where little vegetation exists. of women whose sons had as aside a me in World those who asked andwill o not have a etic qualities appearance, Slopes on the canyon sides are not conducive to if the duringarea the war.e The city agreed toal theo proposal an not interfere with the aesthetic of the development.Most of the canyon is under public died during the war.The me kin1 and canyon, the area was dedicated as a memorial parkin 1924.Since ownership,and has generally steep terrain.The Salt Lake then a number of monuments have been added and it is County 208 Water Quality Plan"Composite Land now a memorial to the men and women of Utah who have Ottinger Hall Suitability Study"indicates that the large majority of land lost their lives in defense of their country. Ottinger Hall,named after George M.Ottinger,chief in City Creek Canyon between the canyon entrance and There are two small landscaped medians south of of the first paid Salt Lake City Fire Department,is one of the end of the road at Rotary Park consists of soil Memory Grove in the center of Canyon Road.Originally, the most significant structures in the area.It was constraints that could not be mitigated to accommodate Canyon Road had been built in two sections on each side constructed in 1900 by the Veterans'Volunteer Fireman's development.Soil problems and steep slopes would of City Creek.In 1909 the city put the creek underground Association as a social hall for members of the association preclude development in most areas of the canyon even if to protect the water supply and to prevent accidental and their families.It now contains relics that depict the public policy was supportive of development.Extending drownings.Residents of the area petitioned the city to history and development of the Salt Lake City Fire into the canyon from Rotary Park the terrain becomes make the in-filled creek bed into apark.By1912 a small very steep and rocky.Any development in this area would Department,esCo mu ity Councilo ad othersg place for the fortnalpazkhadbeencomp]etedonthestripbetween3rd Avenues Community and others. require significant alteration of naturalfeatures.Therefore, and 4th Avenue and a green area was constructed in the development of any type is not a viable land use alternative. park area above 4th Avenue. Most of the homes in the Canyon Road area were Memorial House developed between 1880 and 1919,and are similar to Reception Center Ownership and Jurisdictional Patterns homes constructed in the same period in the Avenues and The Memorial House Reception Center,located in The majority of City Creek Canyon is owned by Salt Capitol Hill Communities.The City Creek Historic District Memory Grove at 480 North Canyon Road,was converted Lake City.However,some segments are owned by the was established on the federal historic register of historic from old barns in the early 1900's.The city has leased the federal government,and a few scattered parcels are sites in 1978 to protect these homes and the area's center to the Service Star Legion for a nominal sum for privately owned.Governmental jurisdiction in the canyon character.The district contains fifty-two residences,of many years.The Legion,a non-profit organization,uses is shared by Salt Lake City,Salt Lake County,and the which there are six landmark sites,thirty-five contributory reception center profits to further their cause of assisting United States Forest Service. homes and seven non-contributory homes.(Contributory military veterans with a variety of services. City Creek Plan that are a part of Memory Grove but not formally maintained;and undeveloped hillsides,(the majority of architecturally significant residential pocket along Canyon Road,and the Memory Grove Park.It is unusual to have which are owned by the city). a well preserved pocket of homes depicting the city's heritage and earliest period of development,and such a Policies large amount of open space close to the Central Business Emphasis in the Canyon Road-Memory Grove area is District(C.B.D.). to maintain and enhance the existing features and City Creek Park Proposal characteristics,and to create a link between the canyon Goals and the Central Business District(C.B.D.).The city has .Create a visual and pedestrian link between the C.B.D. %y HE city should consider designating the a unique opportunity to capitalize on the historic and and the Memory Grove-Canyon Road area; rr entire City Creek Canyon as a park.The "City Creek Park"should encompass T •Preserve the historically significant homes and low Memory Grove and all publicly-owned ,,{ �ss� density residential pocket along Canyon Road; properties extending from Memory i?. # "". , •Maintain and enhance Memory Grove Park as it Grove to the top of the canyon.The =P i "" ,� d, presently exists.Concentrate on maintaining and function of the City Creek Park will range .,r - ,gyp +. .,. upgrading existing facilities rather than providing from formally maintained recreation amenities in Memory • '"I [ additional amenities; Grove to a natural wilderness area in the upper segments k •Preserve the undeveloped canyon and hillsides as natural of the canyon where natural qualities should be preserved open space; and enhanced.Recreation proposals in this plan outline the •Ps.mote the"CityCreek Park"concept. 40 general"City Creek Park"concept. "y - -: Memory Grove-Canyon Road Area l idimiiiiimiko•=, Recommendations This segment of the study area extends from North C.B.D.-Memory Grove Entrance Park. Temple to the Bonneville Boulevard loop,and encompas- The city should acquire property near the intersection ses the undeveloped hillsides to the ridges of the canyon. Located in Memory Grove,this monument was constructed of North Temple and State Street for development of an This area consists of the Canyon Road residential pocket; in 1932 to commemorate those who gave their lives in World entrance into Memory Grove.The northeast corner of the Memory Grove Park;undeveloped,natural canyon areas War I. intersection is the preferred location.A small historic 2 NATIVE SHRUBS OR TREES TO IDENTIFY PUBLI D ATE PROPERTY BOUNDARY / R O / U / 1 / NATURAL AREA / f ' O I 1� G��a se / 2S NATURAL AREA U La lirVA O / oCi 1 1170R V 1 FREEDOM TRAIL EXTENSION TO BONNEVILLE BOULEVARD • LPEDESTRIAL TRAIL o' FUTURE PARK SITE O ONE LANE OF BONNEVILLE r BOULEVARD DEVOTED TO 4 BICYCLES AND PEDESTRIANS O PICNIC AREAS N\ I —1 11T11 AVENUE \—\\.\\ •=i - I - —\ V iGVI !PEDESTRIAN TRAIL 111111.EXISTINlik OUSE LMIENH UTAH STATE CAPITOL jMALH _ 117/ TIAL EXPAEXISTING PEDESTRIAN TRAIL MEMORY GROVE ERH STAiRs i__- FOURHAVENUE, y 1 1 ;0Ilimri, _ _ _, Frmally Maintained Park PEDESTRIAN TRAILS FROMF1 Potential E ansion of PETRE PARK IS MEMORY XPGROVE,STATE CAPITOL.ANDFormally Maintained Area HISTORIC RESIDENTIAL ://L CANCEPARKE RAL BUSINESS NEIGHBORHOODS ICT/MEMORY Canyon Road Residential Area 1 i _ _ [ _ 2ND AVENUE I Natural Area:Vegetation for - IIII Deer Forage and Erosion Control w 12 1ST UI AVENUE I II II II I II 3 r, �'�► -• - '' M Grove Park. �� .r _ .T•Y f � • 41 - Future emphasis regarding Memory Grove is to - `r''� .y,'_ r. _ v� •r • ti „ ram' maintain and enhance existing park facilities.Continued �.-' a. t _ a..-- - y' a -^j placement of additional monuments is generally discour- Y 'T�rY '. --.4; aged because of the likely"cluttering"effect The city � w •. • t - t,e should remain receptiveto considering occasional requests �•'�: - s for new monuments,but must be very selective in the - -+ - .� ,'.,'. type of structures and locations proposed.Monuments allowed to deteriorate should be refurbished or replaced. - i,yz: The ongoing advisory committee should evaluate requests ti ` r.. _i 1' for new park facilities and make decisions regarding - ' r• Ri maintenance needs of existing facilities.This would enable -'�' _ the city to coordinate with all interests when considering •- - - - proposals for facility additions or changes. ' _ The city should not expand the formally maintained a segment of Memory Grove Park in the near future.The ir-' focus should be on maintaining existing facilities.City • • - , ei-t • --'- owned properties surrounding the maintained park are t �� considered part of the park even though they are not .I' - - improved or maintained.All city owned property should - be considered as being included within the boundaries of - the proposed"City Creek Park,"and should be retained • J ' as unimproved open space for possible future park 'r;A _;.�....Y �+" _ :- expansion if park usage and function expands to the point - �7t� - --• - - - - that additional maintained area is desirable.There are also some privately owned properties adjacent to the park that 1: could eventually be acquired for pazkexpansion asdesired. - _ -^• - - - Resident suggestions for expanded uses include an •... t:.i amphitheater,a small playground,and expanded lawn area .r1}•';r J _ - for quiet open space.These and other potential uses will :t ' i•�`, _ : !- 5 have to be evaluated as to their compatibility with the •t."' gg Memory Grove setting when park expansion is more • .. ^ 1 8 seriously considered. A view of Canyon Road extending into City Creek Canyon. Freedom Trait theme park with a variety of art forms depicting the city's Canyon Road Residential Pocket. Salt Lake City high school students are participating in heritage would be very appropriate.The park should The historic homes and the quaint residential the renovation of Memory Grove by joining together to include a kiosk containing information regarding history of environment along Canyon Road are unique,being so close design and build a"Freedom Trail"that will consist of Salt Lake City development,location of historically to the C.B.D.Policy for this area is to preserve and interconnecting plazas based on the theme of American significant sites,and possibly maps outliningwallong tours enhance these homes,and the low density neighborhood liberties.The proposal calls for six plazas.Each plaza will of Memory Grove and points of interest in the Capitol Hill atmosphere.The large street trees should also be have a different"freedom"theme.The plazas will be and Avenues Communities.A small park at this location reserved. connected by a pedestrian path starting at the foot bridge should alsoprovide benches,tables and shadyareas where P in Memory Grove and extending over one mile up the This area is presently zoned Residential"R-2"with a visitors in the downtown area can relax between historic district overlay.These regulations are sufficient canyon.The city should augment the freedom trail project with sightseeing activities. to ensure that incompatible intrusions do not develop.Future emphasis should be directed toward maintaining markers identifying historic sites in the area such as the - Pedestrian Traits. the structures in sound condition.Proximity to the C.B.D. old silk weaving building,and old rock mill. This plan outlines a series of pedestrian trails extending will result in increasing pressures for higher density Other Trail Proposals. from the proposed park at North Temple to various points development as the city continues to develop in Other pedestrian trails should also be developed of interest in Memory Grove,Capitol Hill,and the Avenues surrounding neighborhoods.If structural conditions Community.With literature available to provide proper deteriorate in future years to the point that redevelopment through the unimproved areas that the city presently owns orientation,visitors could take their own self-guided is imminent,it may be difficult to maintain low density as future needs dictate.The city Parks Department walking tour,or perhaps the city could arrange for regulations.The Avenues Community Council should proposes to improve the pedestrian trail extending from volunteers to provide information and/or guide service monitor conditions in the area and request that the city 8th Avenue into Memory Grove.Funds should be available during the summer tourist season.The state capitol, consider Redevelopment Agency rehabilitation programs, for these Improvements in 1989.A trail should also be numerous historically significant homes and Memory code enforcement,and similar programs as necessary to considered that would link Memory Grove with upper East Grove can all be enjoyed on a relatively short walking tour. insure that homes in the area are maintained.The city Capitol Boulevard in the Capitol Hill Community. Good sidewalks,properly maintained parking strips, should remain committed to maintaining public facilities and crosswalks and proper signage would be essential to a utilities in good working condition in this area.As with t I: ' r<•g , 3 ^` successful pedestrian trail system. most older areas,infrastructure is aging and in need of •\ ' ongoing maintenance and repair.Flood damage repair has -- -" -w : i '' '' ^a' 4th Avenue Stairs. corrected 'r"r .x k'` many problems in the area,but there is more +get ;"-,V •s,-.' The city is presently planning to improve the 4th to be done. - I '„ Avenue stairs on both the east and west sides of the _ a canyon.The Parks Department has selected a design Ottinger Hall. c`.„ - 'at--;a:, ,. consultant for this project.In addition to reconstruction of This unique old structure has functioned as a museum 74'-Y ' £ 'o as Y the stairs,proposed improvements include decorative and a meeting place for the Avenues Community Council V'-` •-•> ; .-.. y k,} lights,and landscaping.Subject to obtaining necessary and others in recent years.The building could be used and 4'4-.t,.•:':it, - funding,these improvements should be implemented on maintained much better than it is.There is a pressing need -'+' h � "" ° _ both the east and west stairs during the 1986 construction for organized,coordinated direction regarding the use and -t ''3 ` ;'aiN• ,,,,, season.If improvements are limited to only one side of maintenance of Ottinger Hall,the Memorial House,and ' • ,1I4 „ +ir ''',&. .,-* the canyon at a time because of funding limitations,the the development of new facilities at Memory Grove. :r '" west stairs should be improved first because they are in An ongoing advisory committee consisting of city 41, , ,`1 the worst condition.The main concerns regarding these personnel,representatives of the Avenues and Capitol Hill Z'-�• - . stairs are that the improvements are well designed and Community Councils,Service Star Legion,and other � •, -»' compatible with the character of the surrounding historic interests should be established to determine appropriate district. new uses and maintenance programs for these buildings � -` - ' and the park grounds.It is generally agreed that expanded - 4y:‘" •44 r , y- , a uses compati'blewith the surrounding homes and inkeeping �r „_',. ..- ,i � - � z with the traditional character and function of the two �- .r c -` ^4.'S•,h buildings is desirable.Numerous civic and non-profit •c `s ' 4, _.-s s groups would likely pay nominal fees for access to these _ -,.- I. a- r-w -- i - buildings for meetings,luncheons,etc.The city should •- take the lead in organizinganongoingadvisorycommittee The fall of the year is a visual delight for canyon visitors. to look into these matters. Clean-up Needs. Memorial House Reception Center. Abandoned utility poles and wires,chunks of concrete, The city has leased the Memorial House to the Service and other debris are prevalent along Canyon Road between Star Legion for a nominal fee for many years.The Legion Memory Grove and Bonneville Boulevard.The city ..- -4" uses reception center profits for a variety of services Streets Department also uses the flat area along the east iI tilt, *, a benefiting military veterans,including improvements to leg of Bonneville Boulevard for storage of salt,sand,and Memory Grove Park. gravel. t The Service Star organization has provided a valuable Clean-up efforts in these and other neglected areas _ - service to the city through the years in contributing to the should be instigated immediately.The city should -- -- - quality of Memory Grove Park.The city should not coordinate a general cleanup effort,with utility companies - - - consider replacing the reception center,but there has been and other responsible agencies participating. some concern that the Memorial House use should be Residents also express conceras regarding the cats and _ - ___.......iiiiiill expanded or changed to be more beneficial to the fills that scar hillsides in this area.As part of a general surrounding communities and more profitable to the city. dean-up effort,the city should restore and revegetate The Memorial House Reception Center has been used for The proposed advisory committee should explore the these damaged areas to their natural condition.The city many years for a variety of services benefiting military possibility of additional uses and appropriate use of should also prohibit any future cuts or fills along hillsides veterans. associated revenues. in City Creek Canyon. 4 Drainage and Flood Control Needs. Council Council took action to keep Canyon Road closed between The city and county have repaired most of the damage �i. the turn-around north of Memory Grove and Bonneville along the city creek drainage resulting from flooding in ." Boulevard,and to open Bonneville Boulevard to vehicular 1983.Extensive efforts have resulted in improved flood • traffic.This is an interim solution that is to be re-evaluated control capability as well as a generally improved • when this plan is completed. appearance along City Creek.There are a few improve- s Thisstudy analyzes the circulation system in light of ment needs remaining.These include bank stabilization at the following: various points along City Creek,new vegetation around 1 l the desilting basins at the Bonneville Boulevard loop, - ` - •Land use policies for the Memory Grove-City Creek drainage improvements along Bonneville Boulevard,and Canyon area; erosion control improvements where the 11th Avenue •Local and city-wide circulation needs; storm drain dumps into City Creek These projects are l g •Desires of city residents. itemized in the Capital Improvement section of this report. 1 • Undeveloped Canyon and Hillsides Extending up to the c Short Range Circulation Goals Bonneville Boulevard Loop. a The city should implement and support land use policies Memory Grove Park consists of approximately 800 ienhancing the canyon as a unique recreation amenity in ' acres,the majority of which is undeveloped hillsides Vehicular traffic in the canyon is limited to allow more accommodatingSaltLakeity.through-traffic dobe shifted from between the two legs of Bonneville Boulevard.As opportunity for recreational cycling. providingng access for previously mentioned,major expansion of the maintained recreation purposes such as bicycling,running,and park is neither anticipated nor desired.The majority of providing reasonable vehicular access to recreation this area should remain in its undeveloped natural state on the road increases slope instability and encourages amenities in City Creek Canyon. and under city ownership. continued slide movement.in the meantime,the roadway The map on Page3identifles possible picnic areas along at one point on the west leg is too narrow for two-way Short Range Recommendations City Creek and the location of a future recreation facility traffic;especially when bicycles and pedestrians are also If successful,short range goals of enhancing recreation and parking lot along the west side of the east leg of competing for this space. amenities in this area will make it difficult to reopen the Bonneville Boulevard.Long range recreation needs may Prior to the flooding,Bonneville Boulevard handled road to full vehicular access.However,a total planning dictate the eventual expansion of the formal Memory approximately 500 daily vehicle trips.Since the flood, disregard for future city-wide circulation needs could back Grove Park,but other than the picnic site proposals and traffic has been dispersed to other streets in the downtown fire.Only responsible long range planning will help assure pedestrian trails traversing the hillsides,undeveloped area and lower avenues.Available traffic information a proper balance between these somewhat conflicting areas should remain in their natural state;at least for the indicates that the Bonneville Boulevard closure has caused needs. foreseeable future. no significant increase in traffic volumes on other streets. Citizens participating in the citizen Circulation Advisory Committee for this study advocate keeping the number of Slope Stabilization. Public Sentiment. vehicles on Bonneville Boulevard and in the canyon at a Unusually moist soil conditions experienced during the During the time these streets were dosed to vehicular minimum.Realizing,however,that a total vehicular banis last few years have resulted in numerous landslides along access,residents of the area increased use of these unrealistic,given the current level of recreation use,the hillsides in City Creek Canyon.The area of greatest roadways for recreation activities.In early 1984 an conunittee proposes two compromise alternatives: concern is the hillside extending west and uphill from Avenues resident submitted a petition requesting •The first alternative suggests that since one-way traffic Bonneville Boulevard toward East Capitol Boulevard in the permanent closure of both Canyon Road and Bonneville on Bonneville Boulevard is functioning well,the logical Capitol Hill Community.Landsliding in this area has Boulevard to vehicular traffic other than for authorized short range solution is to maintain the road as a one-way encroached onto Bonneville Boulevard,blocking a portion recreation use such as picnicking and hiking,and for street with one lane devoted to vehicular traffic and one of the traffic lane,and is threatening the stability of homes maintenance vehicles.Persons endorsing the closure lane to function as a bicycle/pedestrian lane,consistent at the top of the hill. petition contended that such action would: with the circulation pattern presently in effect.Lanes The city is continuing to monitor these slides and •Provide an area where city residents can enjoy running should be designated by clearly visible pavement striping evaluate potentialsolutions.There is an indication that the and bicycling without competing with automobiles; and adequate signage.Some type of physical barrier may slides of most concern are stabilizing,and if so,corrective eventually be necessary to separate the lanes if action may be minimal.However,a major drainage and •Enhance the atmosphere of serenity in the Memory bicycle/pedestrian safety problems become evident. Grove-City Creek Canyon area; slope stabilization project may be necessary if sliding •A second alternative is to dose the west leg of Bonneville continues to persist. •Eliminate the threat of increasing commuter traffic to Boulevard to vehicular traffic,and open the east leg to the University of Utah from points west and north two-way traffic to provide upper canyon access.This Handicapped Access. through the Avenues and Capitol Hill Communities via Bonneville Boulevard. concept includes a formal fthe bicycle lane flng the Recreation facilities and pedestrian trails,especially in two-way eastern leg of the road.Some advocate this as the Memory Grove area,should be accessible to the The closure petition has prompted lengthy debate. being a desirable approach because it eliminates vehicular handicapped to the extent possible.Trails,bicycle paths, Public attitude ranges from supporting total closure to all access between the Avenues and Capitol Hill Com- etc.in this area could be ideally suited for the increasingly vehicles,to unregulated two-way traffic on both streets. munities.This approach should be considered a longer popular organized wheelchair sports and competition,in Some even continue to advocate bridging the canyon with range alternative if one-way traffic creates unforeseen addition to providing general accessibility to the a roadway(a long standing proposal that has been problems,or proves to be ineffective.Two-way traffic handicapped population. eliminated from city plans because of overwhelming public with a bicycle/pedestrian lane would be a more expensive opposition).At a hearing in November of 1984,the City alternative because of the need to widen the road. Traffic and Circulation Policy i Circulation planning for the CityCreek area must consider � all traffic needs,but with an increased emphasis in v?� /! pedestrian and bicycle circulation as they relate to overall ® S. �� '� recreation proposals for the canyon.Vehicular circulation 0� { � emphasis should change from accommodating"through" - kl\ `traffic,to providing access into the canyon for recreation �a®L ,� -�l1 1LEses.The shortran a lanning goal is to accommodate 1" /" . 1Pub g P Ih'! l\� ■ r+,... s i and balance these competing circulation needs to the I © R r j,,,,,, =I,�-� ; ®� extent possible.Long range planning policy will likely — — f \ i a i ,.�.■1■❑❑, support a recreation amenity of city-wide significance in , / �1�©�■��.,❑®- ❑,II U II I I!I EU City Creek Canyon that overrides circulation pressures. —_ flit !®oO $ FUTURE PARK SITE AND Background I I I ! I ■ E�r�il ��©`� , ALTERNATIVE LOCATION mr ! FOR ENTRANCE GATE INTO L( Two roadways traverse the City Creek Canyon study I nl .ate II,. UPPER CANYON. IL area;Bonneville Boulevard and Canyon Road.Bonneville © `� j lo f I�i'�'�®- !� Boulevard has functioned through the years as access ii-iiii [Irr„,,,,,',IIIHREERHIEHbetween the Capitol Hill and Avenues Communities,andI ■ . as access into City Creek Canyon.Canyon Road extends i=�❑❑❑❑❑❑L❑❑E from 2nd Avenue,north through Memory Grove and t approximately six miles into CityCreek Canyon.Canyon i■ I __ �� ❑❑�❑❑❑I�❑❑� Road has traditionally provided an alternate route into the t�� o I ❑❑®❑❑❑I�❑❑[ canyon from the Central Business District.Both roads -■'ll� I ./�I�,I„ _I 1_■I II III.I■11■ have accommodated vehicular traffic since early city `! 1��1 nw�� _ --. R� development.Both roads were dosed to vehicular traffic II��I�� 11111 IIIw �I■ "f{o in the spring of 1983 when City Creek flooding severely — damaged Canyon Road,the City Creek channel,and other 1 E© [ I L public facilities in the Memory Grove area. J/11 ,_� i _ 3 f Imo- • I E r i'MI I O� :� l f I a.. �� 1 J Flooding in 1983. I.�+ 41€ I . t..0■I .. I _oer__L-1 , II 1..,. .-„ Repair of flood damage required the city to keep both MOW/ 2'I r a=ME Al'© roads closed until late 1984.In addition to flood damage, I.,.,I',I a OMENS --®I iIj n unusually high amounts of precipitation in recent years f I n ri --q - - Bonneville Boulevard Loop have resulted in very moist soil conditions which have L I�n,I caused landslides in many areas including the hillside above !�_C`\ I 7�f 'I_❑ s0 �� Canyon Road the west leg of Bonneville Boulevard.Several landslides )J g �� 1��❑o are threatening to damage homes on top of the hill if slides I-- I \rls�� Sll.1 -il ✓ 1[,, .I II ,BE -•>Access corridors replacing below them continue to move. fjY eoo SOUTH through-traffic on Bonneville There is not a simple,inexpensive solution to this R❑I•... IL. I Jr ( it 1111❑ Boulevard. problem.Removing the toe of the slide as it encroaches 5 •Promote city property acquisition and annexation to • - insure future control over land use in the canyon. Recommended Actions - -�;► The following actions are recommended to implement the planning goals and policies: -- ••Maintain the roadway in good condition to facilitate safe, { •• 71 convenient access into the canyon for bicycles and runners.Chuck holes,rocks and other debris are of `� “1 ' I I - -: i'. _ particular concern. •L� t rr. •Maintain the roadway at or near the present width.Road _ 1�--- - - - widening to the extent that necessitates cuts and fills or .' I ..es -'m stream re-alignment is strongly discouraged. ' !r •Devise a schedule for sharing the roadway by all traffic modes.Because of the narrow roadway width, =�.' '+i�� .4,-,‘: .., - - - _ automobiles and bicycles cannot safely use the canyon ter`' ,�. - - _ road at the same time.There is also a safety concern _ -fit -, ,. ' - • - with pedestrians and automobiles sharing the roadway, --- _.-AMMIldik,, but the accident potential is much less.Present city Floodingpoin 1983 caused extensive damage to both CanyonRoad and Bonneville Boulevard. prohibitedoh➢is that on bicycles are Wedpermnesdtted and. vehicles on Mondays and Wednesdays.Vehicles have access rights the other five days of the week.Pedestrian Summary Bonneville Boulevard corridor.The city must respond to access is not restricted.Residents participating in Both alternatives call for Canyon Road to remain closed circulation needs in the area by improving traffic flow on development of this plan believe that automobiles should to vehicular traffic between the turn-around north of the other streets and intersections as previously discussed, be prohibited for more than two days a week.They Memorial House and Bonneville Boulevard loop.Canyon so that the city's circulation system can function adequately propose at least a 50/50 share.Options for sharing Road above Bonneville Boulevard will be controlled at the without using Bonneville Boulevard. include different times of the day as well as differing present control station with vehicles and cyclists sharing days.For example,vehicles could be prohibited during access on alternate days or perhaps a morning/evening Bridge Across the Canyon morning hours but permitted later in the day for access to picnic areas.It is not appropriate to specify hours or sharing arrangement.Motorists would access the canyon The concept of a vehicular bridge across the mouth of days in this long range plan.Change in present policy on permitted days on a reservation basis.Present city City Creek Canyon has a long history of thought and ill policy is that bicycles are permitted and vehicles prohibited debate.At one time a bridge was included on the major require coordination among effected city depart- on Mondays and Wednesdays.Vehicles have access rights street plan as a component of Bonneville Scenic Drive. menu,input from city residents,and city council action. the other five days of the week.Pedestrian access is not Because of public opposition to both the bridge,and a The city should monitor access patterns before changing restricted. foothill boulevard that could eventually connect with Davis access schedules.Hopefully,joggers,hikers,and cross Residents participating in this planning process feel that County,both have been removed from the recently revised country skiers can continue to access the canyon at any the city should exclude motor vehicles at least half the Major Street Plan.Several subdivisions have also time. time.Change in present policy will require coordination developed in the area in the last few years,eliminating the •Consider public transit in the form of shuttle buses as a among effected city departments,input from city feasibility of the Bonneville Scenic Drive concept.Because long range solution to providing access into the canyon residents,and city council action. of these reasons,Bonneville Scenic Drive and the City as an alternative to the private automobile. Creek bridge are no longer considered viable proposals, •improve the appearance of the canyon entrance around Longer Range Implications and the bridge has not been discussed as a circulation the caretaker home.Either remove or screen Short range indicators suggest that Bonneville alternative in this plan. maintenance equipment,etc.,and keep the buildings in Boulevard is a convenient link between Capitol Hill and sightly condition. Avenues neighborhoods,but not an essential major street. - If this condition remains and attempts to enhance the area City Creek Canyon Above •Maintain picnic facilities in good condition.Future picnic as a quiet,serene sanctuary are successful,short range Bonneville Boulevard facility expansion should be minimal.A few additional automobile limitations could possibly be expanded. tables may be added to existing facilities,but the creation However,circulation system pressures may overwhelm Policy of major new facilities is generally discouraged. the desire to devote the entire City Creek area to Maintain the canyon in its natural state and limit canyon •Develop pedestrian trails linking the canyon(below vehicle-free recreation opportunities.If so,short range activities to watershed protection,water treatment Rotary Park)with trails in the upper Avenues goals may have to give way to circulation system facilities,and limited public recreation opportunities. Community and foothills above Capitol Hill.The pressures,with compensation for vehicle circulation needs proposed city-wide trails element of the master plan will being made by developing and expanding bicycle/pedestrian Background include a formal analysis of trail opportunities and will trails through the undeveloped foothills. The canyon above Bonneville Boulevard has tradition- lead to formal[railhead development,signage, ally been divided into two segments;the lower canyon easements and rights-of-way and maintenance Long Range Circulation Goals extending to Rotary Park,and the upper canyon above the strategies. The long range circulation goal is to determine the park.The lower canyon consists of small picnic areas along •Maintain and enforce ordinances prohibiting off-road ultimate role of Bonneville Boulevard.This goal will be the stream,and water treatment facilities.Even though vehicles in the foothills.Enforcement should be accomplished by the following actions: picnic areas are scattered all along the stream,the canyon's increased as necessary to insure that violators are •Promote development of the"City Creek Park"concept; natural character,including lush natural vegetation,exists apprehended. much as it did prior to man's influence in the canyon.The •Promote circulation system improvements on streets caretaker home and water treatment plant are the only •Discourage the development of new recreation facilities and intersections in Capitol Hill and the Central Business structures in the canyon.Extending into the canyon from in the canyon. District to meet circulation system demands without Rotary Park,the sense of being in an undisturbed natural •Design and develop future public utility facilities with relying on Bonneville Boulevard as a through street(see sanctuary is even greater.This area has been protected sensitivity to the policy of maintaining the canyon in its map previous page); as a watershed area through the years.There are no roads natural state.If a water storage reservoir eventually •Monitor land use patterns and the extent and success of (other than occasional remnants of old jeep trails),and no develops in the upper canyon,the design should be recreation facility improvements in the City Creek/Mem- structures.Other than watershed management,hiking, compatible with the natural canyon setting.Access to ory Grove area. fishing and limited hunting are the only activities permitted the reservoir should be limited to a small utility vehicle in the canyon. right-of-way,preferably with a dirt or gravel surface, Long Range Alternatives One of the major purposes of this study is to re-evaluate Recommended long range circulation alternatives for the somewhat informal policies that have evolved through Bonneville Boulevard include the following: the years regarding land use in City Creek Canyon.The - .t •Maintain and enhance the one-way traffic pattern along City Department of Public Utilities has managed the Bonneville Boulevard.Make improvements such as a watershed through recent yeazs,includirngthe enforcement 2' , p of recreation policies and regulations.Appropriately, special running surface,vegetation,benches,decorative watershed protection has been given priority over ' lighting and other amenities,to make the most of the recreation.Other than picnicking,fishing and hunting, -y k bicycle/pedestrian lane and recreation aspects of the recreation in the canyon is primarily limited to enjoying " '- ' ' roadway. the canyon and its natural flora and fauna. -.-. •Relocate the upper canyon access point to a location City residents participating in this study are very . _ W:-- midway along the eastern leg of Bonneville Boulevard supportive of maintaining restrictive land use policies.The m, as depicted on the map on the previous page.Access group endorses the policy of giving watershed protection .r? I ;" control at this location ties into the proposed amphithe- first priority in the canyon,limiting recreation to activities ater(or other recreation facility),and parking lot; presently permitted and prohibiting any development in tr providing a more logical parking area for persons entering the canyon.Residential or recreation development of -4 the canyon.If implemented,this would eliminate vehicles private property and any development of public property, on Bonneville Boulevard other than those making such as a ski resort,are identified as unacceptable land reservations to enter the canyon for recreation.A control use activities. i gate at this location should be designed to be aesthetically pleasing,while being effective in controlling off-road Goals { vehicle access.* •Promote the"City Creek Park"concept is�� For these alternatives to work it is essential to promote •Maintain the canyon in its natural state; a the Memory Grove/City Creek Canyon recreation area as a special recreation amenity of city-wide significance that •Identify and protect important flora and fauna; overwhelms pressures to move vehicles through the •Prohibit future development and/or commercial endeavors; 4' °Note:Polceand other emergency vehicles must have immediate access - L- • ' through all access control gates installed in the canyon. .provide safe access into the canyon for all modes of canyon.Any access control - proposal must include provisions for their immediate access. traffic without widening the narrow canyon road; A natural lake located high in the upper Canyon. 6 Summary --!-•y° .` ALT LAKE CITY is fortunate to have a s natural amenity such as City Creek Canyon _ so close to the central business district.The • ' S .-An city should take pride promoting the"City Creek- - -1- - -�. Creek Park"concept and enhancing the tk , r _.s e -y F- "� % canyon as a natural watershed and � `'fit• wilderness recreation area for residents SYwP rt !d4 it • "!` t'r'- " and visitors to enjoy.Effort must be taken to preserve upper segments of the canyon in their natural state.Land ,r• t', 11 _ �1►'_ - - use activities such as residential development or � Ay:1 .`-SY� - ,, - commercial recreation will destroy the natural canyon�,4 yI�,�t�l°`'` k environment. 't "uPPi/ -I4 1p r':(r ° ,, •I/ The circulationsystemmustalsobemonitoredcarefully _ �, ,f !! r 1°,A Ilrll on an ongoing basis.Bonneville Boulevardshouldprovide vehicular,bicycle,and pedestrian access into the canyon - , , 1 )J / / for recreation purposes,but other streets and intersections t in surrounding neighborhoods should be improved so that i' �r�f, Bonneville Boulevard does not have to function as a N �� j through street. i Immediate action toward plan implementation is ��/,i : important.Recommended improvement projects should be •,,r programmed into the dty's Capital Improvement Plan to • * ,f ;, ,,j ti g ensure timely implementation. F 4' 0.,.€. "yi s e 1 ... -.i,. :-' ' • ' s Capital Improvement i The beauty of the upper canyon should be maintained in its natural state. Program and access to the reservoir should be limited to public City Service utility vehicles.hi addition to effects on the natural 1 Y 1 setting,residents are also concerned that additional water storage capacity will perpetuate additional Issues The following capital improvements are necessary to undesirable foothill development n the upper Capitol Hill implement the City Creek Master Plan: and Avenues Communities. •Promote winter useage of the canyon.Accommodate Project Schedule* cross-country skiing,snowshoeing and similar winter activities. Bonneville Boulevard Improvements •Keep signs at a minimum in the canyon.Necessary signs Police Protection Improved roadway surface Short range should be of uniform design,compatible with the park OLICE protection in Memory Grove and Vehicle/bicycle lane divider Short range setting. City Creek Canyon is a major concern. (stripes or physical barrier) •Retain the upper canyon(above Rotary Park)in its Problems ranging from speeding along the Proper signage Short range natural state.Formal maintained trails or other canyon roads and late night beer parties, Street trees Short range Par recreation facilities should not be developed to drug dealing,rape and other serious Ben course Long range crimes have all been reported in recent Benches Long range •Prohibit access to,and development of privately owned years.Canyon characteristics are a major Decorative street lights Long range property in the canyon. factor.Areas immediately north of Memory Grove are •Devise a long-range strategy of acquiring all privately heavily vegetated and ideally suited for criminal activities. Canyon Road Improvements owned property in the canyon. The area is easily accessible yet remote enough that Turn around north of the Memorial House Short range •Identifyandprotectnatural flora and fauna.Interpretative policing is difficult.The canyon above Bonneville Boulevard Improved roadway surface Short range plaques and/or pamphlets should be used to inform is even more remote.Policing this area of the canyon is (from Memory Grove to Rotary Park) visitors of indigenous plants and animals. difficult.Responding to complaints is the most common Picnic tables and decorative street lights Short range method of enforcement. (closed portion up to Bonneville Boulevard) •Permit deer hunting in the canyon on a limited basis,to The"Freedom Trail"as it now exists,requires a police control the deer population.Hunting other wildlife presence because of its location.Foot patrol is necessary Pedestrian Trail Improvements species should be prohibited in City Creek Canyon.* to properly monitor activities in the Memory Grove area. Sth Avenue to Memory Grove Short range Areas near the mouth of the canyon should be used for The Police Department is requesting an increased budget Bonneville Boulevard to East Short range deer feeding stations during severe winters. for five additional officers for the downtown foot patroL If Capitol Boulevard •Pursue the possibility of a Forest Service land grant, this increased budget is approved,Memory Grove willbe 4th Avenue Stairs Short range transferring ownership of forest land in the City Creek included as part of regular patrols.If not,on-duty patrol Freedom Trail Improvements Short range drainage to Salt Lake City,or at least an agreement vehicles will patrol on an irregular basis. Foothill trails from Avenues Long range giving the city the first right to acquire any property that A helicopter enforcement program is necessary to Community to City Creek Canyon the Forest Service declares surplus and decides to sell. effectively deal with off-road vehicles in the upper canyon. •Initiate actions to the canyon. Perhaps the city and U.S.Forest Service could work Recreation Proposals iate actions necessaryor canyon annexar un theer entire jurscanon together in a joint enforcement effort utilizing the Forest Acquisition and development of entrance Short range Upperunincorporated Salt Lake County.Annexation is Service helicopter and city personnel to reduce some of park near North Temple and State Street of the enforcement costs. Canyon picnic area improvements Short range desirable from the standpoint of maintaining control over The city is considering horse mounted police patrol in Peripheral vegetation Short range land use and other elements that may interfere with the Central Business District.The city should consider watershed protection. Upper canyon trail improvements Short range extending the horse patrol into Memory Grove,at least General clean-up program Short range •Include City Creek Canyon in the proposed city"Open to the Bonneville Boulevard Loop.This would be a very New recreation facility and parking lot Long range Space Plan."If the plan recommends an open space zone effective means of patrolling the canyon and hillsides.The on the East leg of Bonneville Boulevard that offers more protection from development than the city should even consider developing stables north of Memory Grove expansion Long range present"P-1"Zone,the new more restrictive zoning Memory Grove to house a small number of horses.This should encompass the entire City Creek drainage. may be an ideal location for some small stables,and stables Water System Improvements Residents feel strongly that more restrictive zoning is in the area would help justify horse patrol in the canyon. System maintenance and upgrading Short range essentiaL Officials estimate that a five officer mounted patrol for the New reservoirs Long range •Coordinate the ongoing decisions regarding recreation downtown area will cost$300,f100 annually,plus costs of policies in the canyon above Bonneville Boulevard.Public initial stable construction,etc. Drainage and Flood Control Improvements Utilities,Parks and Recreation,Police,Planning,and As previously mentioned,access is essential to proper City Creek bank stabilization Short range other involved city departments should work together police protection The Police Department must have Vegetation around desilting Short range on an ongoing basis to make decisions regarding access through any access control gates installed in the go 8 gar g Basins at Bonneville Blvd.Loop appropriate recreation activities and restrictions.Anycanyon. Bonneville Blvd.drainage improvements Short range department advocating a significant policy change must Erosion control where 11th Ave. Short range assume the responsibility to contact and coordinate with Canyon Maintenance Storm Drain enters City Creek other departments and concerned citizens. Throughout this planning process there has been Police proposals 'Note:The Utah State Division of Wddlde responded tothe considerable discussion of maintenance needs and recomnendavnnregarding tamtingafter the City Coundadopted this plan. responsibilities in the City Creek Study area.City Regular patrol in Memory Grove Short range They request that upland game bird hunting be permitted in City Creek departments agree that the Parks Department should have Helicopter patrol in canyon Short range Canyon.They indicate that upland game muting is a high quality jurisdiction and maintenance responsibilities in the Mounted patrol in Memory Grove Long range non-obtrusive recreational activity that could occur safely in the canyon. Memory Grove area(south of the Bonneville Boulevard The Division of Wildlife further suggests that wording in the plan change loop),and Department of Public Utilities should have 'Note:Short range improvements can be instigated immediately and from"Hunting for other wildlife species should be prohibited in City Creek should be completed within the next 10 years.Long range improvements Canyon,"to Hunting for other wildlife species should be controlled in City jurisdiction and maintenance responsibilities for canyon shouddnotbe mstigatedmrNshortrange i mprovementsare completedand Creek Canyon" areas north of Bonneville Boulevard. the ultimate function of Bonneville Boulevard is determined. 7 14 tav t e2hY 1 ' -�,�( � a t, 4 e '>: yt a, a t r 5.: Acknowledgments f'"" Mayor Palmer DePaulis - , ciTy City Council Florence Bittner,District 1 CREEK Grant Reed,District 2 Sydney Reed Foantrict4,District 3 l Earl Hardwick,District'I �� - MASTER PLAN 'fit .:, •- Torn Godfrey,District 5 tc,C,;• a } ''b r: Roselyn Kirk,District 6 `` «t - lv '. "; ` SALT LAKE CITY I A �"'=" CORPORATION W.M."Willie"Stoler,District 7 t i,\• •..tc._ Z Planning Commission vy Peter J.Van Alstyne,Chairman Thomas A.Ellison ,y - lli LaVone Liddle-Gamonal - ; Herman J.Hogensen —,A Loma Lee V'~ Robert Lewis y George Nicolatus F.Keith Stepan John M.Schumann _ 4+,Y Kathy Wacker ,,•' ' III!T c 4 • I.J.Wagner e ,.* Participating Planning Staff ---- Vernon F.Jorgensen,MCP,Planning Director - Allen C.Johnson,AICP,Deputy Planning Director Brent B.Wilde,Project Director,Planner III Randolph P.Taylor,Editor,Planner III Doug Dansie,Graphics,Planner I - — - Dennis Varney,Planning Aide I Lisa Irene Stocking,Secretary '{'1I1II Smith&Clarkson,Graphic Design Consultants jlllllll iI111i1i trrrrll sywr s. Front Cover Photograph:A meditation chapel built to corn- memorate Utah war veterans is one of several monuments built in Memory Grove,at the entrance to City Creek Canyon. Illg4 4 ` April 1986