Jackson Master Plan Draft

RENEW JACKSON
A MASTER PLAN FOR MUNICIPAL SPECIAL SALES TAX-FUNDED

INFRASTRUCTURE IMPROVEMENTS
Established and Adopted by the

Municipal Special Sales Tax Commission
As developed by the
City of Jackson
Department of Public Works
May 2016
FROM THE MAYOR

Greetings,
On January 14, 2014, citizens from all over our great city convincingly passed
legislation to approve a 1% sales tax increase to address our infrastructure
needs. Infrastructure stability is a prime concern across our country. The lack of
investment in infrastructure improvements has led to a growing gap between the
funding that is needed and what is available to budget. Our infrastructure
concerns are no different from other cities. Yet, what weve done here in Jackson
is take a progressive approach to address the issues that have plagued our city
for decades. This approach has put us in the front seat of a national
conversation; but reversing a trend of deferred maintenance and curing the
issues from years of limited investment doesnt happen overnight.
Delivering the Vision:

A Bold New City
Transforming the City of Jackson to
become a destination city that is a
leader in innovation, education,
infrastructure stability; cultivating an
environment that is safer and
conducive to entrepreneurial
endeavors.
In April of 2014, this administration took on the challenge to bring about positive
change in Jackson and to provide the best possible quality of life for all its constituents.
We see the national trend toward sustainable infrastructure management as an
opportunity to solidify Jackson as a leader in innovation and planning throughout our
great nation. After assuming office, this administration immediately rolled out initiatives
such as our infrastructure listening tours - to involve the community in the process of
planning for our infrastructure improvements. Using feedback from those listening
tours, a public comment period and input from the commission set in place to monitor
expenditures of the 1% sales tax funds; our own Department of Public Works, being the
subject matter experts, have developed Renew Jackson; a Master Plan for the
municipal special sales tax funded infrastructure improvement program for
Jackson, Mississippi: The Bold New City.
The vision of our city can only be accomplished through our collective genius and collective efforts. This
administration submits to you that at every level, in every department, in all tasks we will be committed to our
citizens, innovative in our thoughts, seamlessly connected in our processes, champions of our vibrant city, diligent in
our efforts to assure the progression of our people, and a prosperous city with leaders that exemplify the level of
excellence that Jackson deserves. As we push forward to implement Renew Jackson, we welcome continued
feedback and ideas to grow the capital city of Mississippi. I thank you for the confidence that you have placed in me
to lead this city toward the manifestation of its potential. We are Jackson!
All the best,
Tony T. Yarber
Mayor of Jackson
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CITY COUNCIL
PRESIDENT
Melvin Priester, Jr., Ward 2
VICE PRESIDENT
Tyrone Hendrix, Ward 6
COUNCIL MEMBERS
Ashby Foote, Ward 1
Kenneth I. Stokes, Ward 3
DeKeither Stamps, Ward 4
Charles Tillman, Ward 5
Margaret Barrett-Simon, Ward 7
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ACKNOWLEDGEMENTS
CITY OF JACKSON
MUNICIPAL SPECIAL SALES TAX COMMISSION
Tony T. Yarber, Mayor
Kishia L. Powell, PE
Gail Wright Lowery
James Pete Perry
Michael Boerner
Duane O'Neil, President/CEO

Dr. Beverly Wade Hogan
Dr. Carolyn W. Meyers
Godwin Dafe
Ted Duckworth
MASTER PLAN DEVELOPMENT

CITY OF JACKSON DEPARTMENT OF PUBLIC WORKS
Kishia L. Powell, Director
Andrada Butler, Deputy Director
Lacey Reddix, IMP Manager
Charles Williams, PhD, PE
Robert Lee, PE, CFM
Leroy Lee
Mary D. Carter
Terry Williamson
William Miley
Anthony Harkless, PE
James Caldwell
George Ewing
CONSULTANT SUPPORT
Gresham Smith TIGER VII Grant
IMS Engineers Program Management Support
Kipling Jones Financial Advisor
Raftelis/SOL Engineers Infrastructure Master Plan Development
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TABLE OF CONTENTS
Infrastructure Master Plan...Tab 1
Executive Summary
Master Plan Development
Infrastructure Systems
Capital Improvement Planning...Tab 2
Appendix A: One Percent Special Sales Tax Legislation.......Tab 3
Appendix B: Sales Tax Funded CIP Annual Budget Summary..Tab 4
Appendix C: Infrastructure Systems Data......Tab 5
Table 1 Streets
Table 2 Drainage
Table 3 Bridges
Table 4 Water Lines
Appendix D: Operation Orange Cone.....Tab 6
Appendix E: Program Year 1 Projects ...Tab 7
Appendix F: Program Year 2 Projects .......Tab 8
Appendix G: Public Comments.......Tab 9
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INFRASTRUCTURE MASTER PLAN

EXECUTIVE SUMMARY
Over the last several years the City of Jackson has spent
hundreds of thousands of dollars on street resurfacing only to
have shifting soils and an escalating number of utility cuts
return our roadways to an obstacle course of potholes. State
Street, a major gateway into our city, was resurfaced in 2010;
however, 26 utility cuts has degraded the condition of the
roadway since. The Citys failing water system loses an
estimated 40% of treated water through leaking pipes. The
corresponding loss of reliability has sent some of our largest
users to private wells resulting in a major loss of revenue that
would otherwise aid in resolving the water loss problem.
In March of 2013, the City received a federally mandated
wastewater consent decree as a result of hundreds of
sanitary sewer overflows (SSOs) and prohibited bypasses
from the wastewater treatment plants. Severe drainage and
flooding issues have had significant impacts on public and
private property. Many of the citys bridges are structurally
deficient; the worst case, a bridge with a rating of 9 on a 100point scale. All of the above are emblematic of the need for
an infrastructure overhaul to RENEW JACKSON.
While the continued deterioration of infrastructure in the
capital city is frustrating and costly to citizens and businesses
alike, this is but a microcosm of a national trend. A trend that
has grown out of deferred maintenance and a severe
shortage of funding.
Like a growing number of municipalities across the country,
the Citys response to this issue was a 1% sales tax
specifically dedicated to infrastructure funding.
BUY JACKSON: THE MUNICIPAL SPECIAL
SALES TAX
In 2014, the citizens of Jackson voted overwhelmingly to
support passage of a 1% sales tax for infrastructure
improvements. The sales tax applies to goods and services
with the exception of groceries, restaurant food and
STATE OF OUR
INFRASTRUCTURE
National and State Perspective:
The City of Jackson is not alone
Public infrastructure assets are in significant
need of repairs and upgrades just to maintain
current service levels but there is a severe
shortage of capital
ASCE estimated a needed infrastructure

investment of $3.6 trillion dollars in the
U.S. by 2020
EPA estimated the 20-year funding gap
for water and wastewater infrastructure
improvements as $534 billion
FHWA estimated a need of $105.6 billion
annually between 2007 and 2026 just to
sustain current service levels
According to the State of Mississippis
2012 infrastructure report card, 2,274 of
the States 17,044 bridges are
structurally deficient
The State of Mississippi has a combined
drinking water and wastewater need of
$5.1 billion over 20 years to improve
existing infrastructure
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beverages, prescription drugs, hotel/motel rooms, large equipment purchases, and subscription television and
internet services. The sales tax is collected and accounted for separate from other funds by the Mississippi
Department of Revenue and paid to the City of Jackson. The City maintains the sales tax revenue in a special
contingency fund until the funds are encumbered for budgeted projects. Based on sales tax revenue projections, the
1% sales tax is expected to generate $13M to $15M annually. The following table shows the sales tax generated
since April 2014.
Table 1. Municipal Special Sales Tax Revenue
1% Infrastructure Sales Tax
Month
2014
2015
2016
January
$1,161,714.36 $1,104,239.29
February
$1,399,264.52 $1,344,590.72
March
$1,048,261.72 $1,018,120.33
April
$6,223.68 $1,153,801.17 $1,190,878.37
May
$1,161,472.16 $1,210,334.48
$1,425,034.00
June
$1,166,418.76 $1,163,783.03
July
$1,125,591.09 $1,276,732.18
August
$1,066,070.38 $1,221,542.66
September
$1,118,181.12 $1,170,913.42
October
$1,147,222.67 $1,133,357.60
November
$1,162,734.27 $1,185,893.25
December
$1,191,601.54 $1,184,640.39
Total
$29,538,617.16
Compared to the needed $1.5B identified in needed infrastructure investment, and the cost of infrastructure
improvement projects, the sales tax alone will not address the problem. Therefore, the City has strategized to
leverage the sales tax in order to fund projects and maximize implementation to stabilize and ultimately improve
infrastructure.
INFRASTRUCTURE IMPROVEMENT SPENDING AND CURRENT NEED
The City of Jackson has not had a formal capital improvement program in over ten years; however, capital projects
have been completed primarily using funding that is reserved from operating and maintenance expenses and/or
grants and loans. In recent years, capital expenditures have increased, largely due to an effort to utilize funds made
available through grants and bond proceeds as well as required expenditures for consent decree compliance. The
following figure conveys the capital expenditures from 2011 through 2015.
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INFRASTRUCTURE INVESTMENTS FY11-15

$40,000,000.00
$35,000,000.00
$30,000,000.00
$25,000,000.00
$20,000,000.00
$15,000,000.00
$10,000,000.00
$5,000,000.00
$Sewer
FY11
$2,440,280.96
FY12
$4,280,356.90
FY13
$12,168,662.61
FY14
$17,591,646.66
FY15
$21,339,653.85
Water
$2,478,157.30
$8,975,804.00
$10,764,441.73
$3,278,735.28
$6,511,982.10
$870,900.08
$289,752.92
$731,123.42
$844,618.27
$1,645,043.00
Drainage
Bridges
$308,030.84
$40,000.00
$688,527.89
$265,879.96
$1,144,966.34
Roads
$4,136,722.15
$5,601,979.07
$3,104,656.60
$11,953,839.51
$6,980,191.83
Figure 1. Total of Infrastructure Expenditures FY11-15

FY 13 -15 Water and sewer expenditures include Water Infrastructure Improvement Program costs for meter
exchange program, water plant improvements and sewerline replacement projects as well as costs of consent decree
program expenditures, leaving very little to address infrastructure in the public right of way.
The limited investment in recent years underscores the reasons for the sharp decline in infrastructure stability in the
City. Based upon the most recent estimates the total estimated need for infrastructure spending in Jackson
between now and 2031 exceeds $1.5 billion. Reversing the trend has required the City to develop strategies to
stabilize, while at the same time establish a plan for long-term sustainable improvements that attract other sources of
funding.
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THE MUNICIPAL SPECIAL SALES TAX LEGISLATION

Section 27-65-241 of the Mississippi Annotated Code lays out the requirements for use of the municipal special
sales tax as follows:
Code Section
Requirements
Revenue Collection
27-65-241 (4)
The revenue collected pursuant to the tax levy imposed under this section may be
expended to pay the cost of road and street repair, reconstruction and resurfacing
projects based on traffic patterns, need and usage, and to pay the costs of water, sewer
and drainage projects in accordance with a master plan adopted by the commission
established pursuant to subsection (7).
Segregating Sales Tax Funds
27-65-241 (5)(b)
The proceeds of the special sales tax shall be placed into a special municipal fund apart
from the municipal general fund and any other funds of the municipality, and shall be
expended by the municipality solely for the purposes authorized in subsection (4) of this
section.
Establishing a Commission
27-65-241(7)(a)
Any municipality that levies the special sales tax authorized under this section shall
establish a commission as provided for in this section. Expenditures of revenue from the
special sales tax authorized by this section shall be in accordance with a master plan
adopted by the commission pursuant to this subsection.
Establishing a Master Plan and Expenditures of the Revenue
27-65-241 (7)(h)
The commission shall, with input from the municipality, establish a master plan for road
and street repair, reconstruction and resurfacing projects based on traffic patterns, need
and usage, and for water, sewer and drainage projects. Expenditures of the revenue from
the tax authorized to be imposed pursuant to this section shall be made at the
discretion of the governing authorities of the municipality if the expenditures comply
with the master plan. The commission shall monitor the compliance of the
municipality with the master plan.
Leveraging Sales Tax Funds
27-65-241(8)
The governing authorities of any municipality that levies the special sales tax
authorized under this section are authorized to incur debt, including bonds, notes or
other evidences of indebtedness, for the purpose of paying the costs of road and street
repair, reconstruction and resurfacing projects based on traffic patterns, need and usage,
and to pay the costs of water, sewer and drainage projects in accordance with a master
plan adopted by the commission established pursuant to subsection (7) of this section.
Any bonds or notes issued to pay such costs may be secured by the proceeds of
the special sales tax levied pursuant to this section or may be general obligations of
the municipality and shall satisfy the requirements for the issuance of debt provided by
Sections 21-33-313 through 21-33-323.
The legislation for the Municipal Special Sales Tax requires that a master plan be established by the Commission,
with input from the Municipality, for road and street repair, reconstruction and resurfacing projects based on traffic
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patterns, need and usage, and for water, sewer and drainage projects. Given the Citys Department of Public Works
is most knowledgeable regarding the Citys infrastructure improvement needs and the state of the Citys infrastructure
assets, the Department, led by the Department Director (a Commission Member), developed the basis for the master
plan while facilitating work sessions with the Commission to establish the required master plan for adoption.
Stakeholder input from Council Members and public comments have been incorporated in this master plan as well.
Once adopted, the Commissions role will be to monitor compliance with the master plan as expenditures
are made at the discretion of the City of Jackson.
AUTHORIZATION FOR EXPENDITURE OF THE REVENUE
The purpose of this document is to establish a master plan for road and street repair, reconstruction and resurfacing
projects based on traffic patterns, need and usage, and for water, sewer and drainage projects. Expenditures of the
revenue from the 1% sales tax will be made at the discretion of the governing authorities of the City of Jackson
for the following:
Costs associated with improvements of all eligible public infrastructure assets

Capital project and equipment expenditures for improvements of all eligible public infrastructure assets and
systems
Professional services for project/program implementation
Capital expenditures that achieve policy direction, short and long-term objectives as well as investment
priorities for each infrastructure system
To address emergency infrastructure failures
CAPITAL IMPROVEMENT PLANNING AND PROJECT DELIVERY

A Capital Improvement Plan is not required by the municipal special sales tax legislation and therefore not subject to
the approval of the Commission. However, the Department of Public Works understood the need to develop both a
master plan for compliance, as well as a Capital Improvement Plan that identifies specific projects, budgeted costs
and funding sources including sales tax funds. The goal of the Departments capital improvement planning process
is to identify and prioritize critical infrastructure needs across the City and to allocate funding to implement those
projects through a process that is logical, transparent, and data-driven.
The Department has elected to utilize a five year planning horizon; however, project priorities will be reviewed
annually with emergency and urgent needs being assessed on an on-going basis by the City. The costs of road and
street repair, reconstruction and resurfacing projects based on traffic patterns, need and usage, and the costs of
water, sewer and drainage projects eligible for use of sales tax funds will be identified in the capital improvement
plan; however, expenditures of the revenue from the tax shall be made at the discretion of the governing authorities
of the City of Jackson as long as the expenditures comply with the master plan.
Specific projects and expenditures will be provided as they are determined by the approved by the governing
authorities of the City to aid the Commission in fullfilling its role of monitoring compliance.
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INFRASTRUCTURE IMPROVEMENT OBJECTIVES

The City of Jacksons infratructure improvement needs are vast and varied in scope. There are multiple drivers at
play and varying perspectives on how the sales tax funds should be spent. It is quite clear that the Citys roads are in
a terrible state of disrepair, and this impacts every neighborhood in every Ward across the City. So it would seem an
obvious answer to prioritize the use of the sales tax on paving streets, restoring utility cuts and filling potholes.
However, for those that are directly impacted by an overflowing sewer due to a collapse, or an eroding drainage
channel, live in a neighborhood served by a 2-inch water line, on the other side of a collapsed bridge or for those
among us that find it difficult to navigate the City due to disabilities, more has to be done with the sales tax funding.
Early in the master planning process short and long-term objectives were established to build upon needs identified
by community stakeholders, in comprehensive plans and in accordance with the Citys economic development
priorities.
Table 2. Short-Term and Long-Term Objectives for Infrastructure Improvements
Short-term Objectives
Public health and safety
Stabilize critical infrastructure

Stabilize streets and facilitate movement in/out of
neighborhoods
Address backlog of citizen service requests
Increase investments around schools and other
critical facilities
Leverage existing external funds to de-shelve
sitting projects
Leverage available funding opportunities (TIGER
and Urban Waters)
Facilitate immediate economic development
opportunities
Long-Term Objectives
Integrated infrastructure improvements to leverage
multiple funding sources and implement Dig Once
philosophy
Drive econmic development in priority areas
Draw from a comprehensive capital improvement
plan
Partner with neighborhood associations to
implement coordinate improvements
Set aside annual funding for Operation Orange
Cone
Set aside funds for urgent need contracts to address
emergency infrastructure failures
Invest in preventive maintenanc projects for
rads/bridges, drainage, water and sewer
Improve walkability of communities and mobility of
those with disabilities
The Department of Public Works employed a strategy of moving partially funded projects, near-shovel ready projects
and interim maintenance improvements in an effort to jump start infrastructure improvements, maximize
implementation and utilize federal dollars that have been sitting unspent for over five years in an effort to stabilize as
much of the City as possible. While at the same time, investing in projects requiring design to establish work for the
next construction season. In future years the program must involve a mix of projects that maximize implementation
of projects while increasing design and construction backlog.
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STAKEHOLDER ENGAGEMENT/PUBLIC INFORMATION AND OUTREACH

Stakeholder Engagement is part of any master plan development process. It was important to receive feedback on
the issues that are impacting communities across the City. From discussions in the community, review of service
requests and feedback from Council Members and Constituent Services; it is evident that the condition of the streets,
drainage issues, leaking water pipes and infrastructure failures, such as collapsed bridges, should be prioritized for
use of this funding source.
The specific stakeholder engagement methods used during the initial phase of master plan development included:
Seven Wards in Seven Days: The Mayor and city council members toured the city with constituents to observe
critical infrastructure issues in each ward. Critical issues were then incorporated in the scope of Year 1 capital
imrpvements.
Listening Tour Stops: Citizens help city officials better understand the impacts of deficient infrastructure within
their communities.
Local Contractors Roundtable: Contractors/Consultants and city officials brainstormed ideas on local
engagement and what works for capacity building as it relates to sales tax funded infrastructure improvements.
Public Comment Period: In March 2015, a draft of the IMP was posted for public comments to be considered
for incorporation into the plan. Appendix G includes the list of public comments received and how those
comments have been addressed.
The culmination of stakeholder input has resulted in a final master plan that addresses the diverse needs of the City
where infrastructure improvements are concerned, the first iteration of a comprehensive capital improvement
program for roads, bridges, drainage, water and sewer systems while important projects have gotten underway.
Stakeholder engagement will be a continuous process throughout the life of the program.
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RENEW JACKSON
INFRASTRUCTURE MASTER PLAN DEVELOPMENT AND IMPLEMENTATION
A Master Plan is a general plan for achieving an
objective, a comprehensive plan that provides for
guidance or long-term strategy. In this case, the
objective to be achieved is infrastructure
improvements through use of sales tax funding.
Given the 20-year life of this sales tax, the basis for
the long-term strategies expressed in this plan is
sustainability.
Because infrastructure plays a vital role in the growth,
stability and vitality of any city, it is important to
establish policy directiopn for infrastrcuture
improvement. This master plan in effect establishes
the following policy directions for infrastructure
investment in Jackson:
Investment will be fair and equitable across

the City to stabilize, improve quality of life
Figure 2. Triple Bottom Line Benefits of a Sustainable
and grow all parts of the City of Jackson
Infrastructure Improvement Program
Priorities for infrastrcuture improvements will be
established by the City of Jackson including improvements that maintain or achive regulatory compliance
and alignment with the Citys Economic Development Priorities
Investments will meet current and future required levels of service
The City will maintain a 5-year capital improvement plan to adequately plan funding strategies that leverage
the sales tax revenue as well as implementation strategies to keep work moving
Planning infrastructure improvements will account for life-cycle costs (cost of improvement plus furture costs
to maintain the infrastructure investment)
Infrastructure improvements will not just improve the structural condition of the assets but also achive
compliance where required
Infrastructure systems with limited funding and urgent needs will be prioritized for funding
The Infrastructure Master Plan (IMP) provides an overview of the eligible infrastructure systems, the overall state of
the assets in those systems as well as sufficient detail to convey how eligible infrastructure improvement needs will
be identified, prioritized and funded for implementation. Additionally, the plan conveys the capital improvement
planning process and the project delivery process required for implementation of eligible improvements.
Development of the IMP started with review of existing plans.
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GAP ANALYSIS
Over the years the City has commissioned several master plans or facilities plans for infrastructure improvements;
however, many of the project recommendations have not been implemented due to funding constraints and/or
changes in priority, operating conditions and regulatory need. To assist the Commission in establishing a master
plan, DPW performed an initial gap analysis review of 34 master plan-type documents dating back to the mid1960s to determine improvement needs and to identify what infrastructure projects were planned, completed, or
deferred. Through this process, DPW was able to identify and propose critical projects that were close to shovelready to get the sales tax funded infrastructure improvement program underway for the first program year.
While the gap analysis demonstrated a need to gather more data regarding the condition of the Citys infrastructure
assets, it was determined that the most recent plans, while not all are comprehensive, provide sufficient detail
regarding needed infrastructure improvements to incorporate by reference for eligible infrastructure improvements.
Table 3. Eligible Infrastructure Improvements and Existing Planning Documents
Sales Tax Eligible Infrastructure Improvements
Existing Plan
Road and Street Repair: This would typically refer to

maintenance and spot repairs including utility cut
restoration and sinkhole repairs; the City would consider
bridge maintenance and repairs as part of this category.
Work can be performed by properly equipped in-house
crews or outsourced to contractors.
DPW utilizes Pavement Assessment Data from the

Central Mississippi Planning and Development District
(CMPDD), the Citys 311 service request system, and
in-house street assessments to identify needed road
and street repairs as well as conduct regular
inspections.
Reconstruction and Resurfacing Projects Based on

Traffic Patterns, Need and Usage: This category refers
to roadways with extensive base failures (reconstruction)
and those needing an overlay of asphalt (resurfacing).
The City would consider bridge replacement as part of
this category. The City would consider sidewalk ADA
compliance retrofits to be included in this category due
to the requirements of federal regulations. Work can be
performed by properly equipped in-house crews or
outsourced to contractors.
A City specific plan does not exist; however, in 2015,

the City provided input for the Jackson Urbanized
Areas Long Range Transportation Plan (Central
Mississippi Planning and Development District). The
City will also submit requests for inclusion in the next
Transportation Improvement Program for the Jackson
Urbanized Area, in the Summer of 2016 as a result of
the FAST Act. The City also implemented a
pavement management system which provided for
condition assessment ratings.
Water: This category refers to the Citys drinking water

treatment and distribution system.
Water Distribution System Rehabilitation Master

Plan Update
February 2013
The City plans to utilize the existing enterprise fund as
the primary funding source for sewer improvement
projects as to allow the special sales tax to be
prioritized for road, water and drainage improvements.
Capital Reinvestment in Urban Drainage
Infrastructure
June 2013
Sewer: This category refers to the Citys sewage

collection and treatment system.
Drainage: This category refers to the Citys stormwater

drainage system.
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IMP DEVELOPMENT AND IMPLEMENTATION

The IMP establsihes a framework of best practices to plan, prioritize, fund and implement infrastructure
improvements in the City of Jackson. Such best practices include the use of GIS mapping to identify opportunities for
integrated improvements as well as development of a comprehensive infrastructure capital improvement plan that
identifies sales tax eligible infrastructure improvements.
PLANNING
The RENEW JACKSON infrastructure master planning effort must
accomodate four major infrastructure systems and meet the needs of
a City that has gone without significant infrastructure improvements
for more than a decade. Using an integrated planning approach
meets the overarching goal of RENEW JACKSON - investment in
comprehensive sustainable solutions that meet both short and longterm objectives. Common drivers for integrated planning are
regulatory requirements, aging infrastructure, limited funding and
affordability; all of which are concerns in the City of Jackson.
As part of the planning process, DPW reviewed data for each
infrastructure system which was used to assess the condition of
infrastructure assets as well as informing the required scope of
infrastructure improvement projects for inclusion in the
comprehensive capital improvement program. Following varying
levels of field investigation to further assess condition of infrastructure assets, a broad scope of services is used to
estimate a cost and establish a priority for the systems. Prioritization of infrastructure improvements are driven by:
Condition of the assets

Evaluation criteria including public health, saftey and welfare
Community demand (service requests)
Need to meet short and long-term objectives
GIS mapping has been used extensively to identify problem areas from service requests and maintenance records, in
addition to planning the limits of projects and identifying opportunities for integrated infrastructure improvements.
The results of the planning process has been development of infrastructure improvement initiatives such as
Operation Orange Cone, a focused program to address the condition he Citys streets (outstanding utility cuts,
potholes, repaving and reconstruction needs); Greening the Gateways, a long-term strategy to improve major
gateways into and through the City using green infrastructure and complete streets concepts; and a capital
improvement programming strategy which is documented in this IMP. The capital improvement programming
strategy has ultimately resulted in a 5-Year Comprehensive Capital Improvement Plan for Infrastructure
Improvements. The 5-YR CIP will be the Citys conduit to program and budget sales tax funded projects for each
fiscal year.
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PRIORITIZATION
Through the planning process, the prioritization of projects happens in
three tiers:
1. By Infrastructure System assessing structural condition
and criticality to define improvement needs and required
level of service or sufficiency of the infrastructure
2. Project development developing specific projects to fund
and program in the CIP
3. Based upon evaluation criteria assessing alignment with
multiple criteria to determine where project falls in the
planning horizon (5-year program)
4. Urgent Need emergencies and high failure risk projects
are funded from an urgent need set aside for on-call work
Prioritization of improvement needs, project development and project
delivery will utilize an asset management based methodology. The focus of asset management is
extending/renewing the service life of public infrastructure at the lowest life-cycle cost. Principles of asset
management include:
Identifying the assets developing a

comprehensive inventory of major assets (roads,
bridges, drainage system, water and sewer
systems
Understanding the state of the assets achived
by performing condition assessment
Understanding the criticality of assets achived
by determining how critical the assets are to
serving the public, including critical facilities and
services
Risk management understanding the
consequences and costs of failure and poor
service levels
Life-cycle costing understanding the cost of
improvements and long-term maintenance
Once priotritized the projects are budgeted in the CIP

based upon funding availability and required timing.
Figure 3. Condition Assessment Data Analyzed
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IMP FUNDING
The municipal speacial sales tax is expected to generate $240 million
in revenue over the 20-year life of the tax, making it necessary to
leverage the tax revenue using other sources of funds including
grants, loans or other forms of financing.
Because the City will target external funding opportunities and
appropriations for surface transportation, stormwater
(drainage), water and sewer program funding, the Citys
comprehensive capital improvement plan will allow for
opportunities to align projects with external funding source
criteria. Several funding sources have been identified for
projects based on what has been typically used for past and
current projects.
Table 4. Targeted Funding Sources to Leverage Sales Tax Revenues

Code
Type
1PTax
W/S
GF
CDBG
DWSRLF
EDWSRLF
WWSRLF
TIGER
FEMA
ACOE
USDA
RB
SA
STP
GOB
MDA
G
Municipal Special Sales Tax

Water and Sewer Revenue
General Funds
Community Development Block Grant Funds
Drinking Water State Revolving Loan Fund
Emergency Drinking Water State Revolving Loan Fund
Wastewater State Revolving Loan Fund
Federal Highway Administration TIGER Grant
Federal Emergency Management Agency Flood Hazard Mitigation Grants
Army Corps of Engineers Grant Programs
US Department of Agriculture Natural Resource Conservation Grants
Revenue Bond
State Aid for LSBP Bridges
Surface Transportation Funds
General Obligation Bond
Mississippi Development Authority Loans or Grants
Other Grant Funds
In addition to the external funding sources the City has targeted for capital projects, there is also a need to leverage
the sales tax using public or private financing methods. Given the $1.5-2B in infrastructure improvements identified
in the CIP thus far, a completely Pay As-You-Go strategy will not work for this program to achive the level of
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investment needed. The most appropriate strategies will be vetted by the Citys Municipal Advisor and approved by
the governing authorities of the City as provided for in the Municipal Special Sales Tax legislation.
Table 5. Financing Methods
Public Financing
Short-Term, Tax-Exempt Debt
General Obligation Bonds
Revenue Bonds
Green Bonds
State Revolving Funds
Federal and State Grants
Government Loans
Private Financing
Direct Source
Public-Private Partnerships (P3)
RENEW JACKSON IMPLEMENTATION STRATEGY

The municipal special sales tax-funded infrastructure improvements
program, RENEW JACKSON, has started implementation in two
phases:
Phase 1
Development and implementation of a Year 1 CIP which

included projects that were shovel ready as well as projects
requiring design that would become the construction
program for Years 2 and 3 of the program
Restoring roads under the Operation Orange Cone initiative
(utility cut restoration to resolve cuts in backlog since 2007,
spot repairs, repaving neighborhood and major streets,
pothole blitz)
Purchase of capital equipment for in-house projects
identified in the CIP and 2013 Drainage Master to improve eligible infrastructure, implement other asset
management measures; this will enable the in-house crews to perform preventive or interim mainteance that
improves the condition of infrastructure more readily in response to community demand and urgent needs
Established an URGENT NEED set aside to fund emergency infrastructure repairs
Engagement of a Program Manager to augment the Citys resources and efforts to implement the
infrastructure improvement program and get contracts established
Phase 2
Development of final master plan based upon feedback from various stakeholders
Development of a comprehensive CIP, including sales tax eligible projects and expenditures
Finalizing a financing strategy to continue improvements
Page | 17
PROGRAM MANAGEMENT
As part of the implementation strategy for the RENEW JACKSON infrastructure improvement program, the City has
elected to utilize the services of a program manager to augment city staff and provide program specific services for
eligible infrastructure improvements. Past programs implemented without the proper controls and oversight to
protect the interests of the City have proven that program management is necessary when additional expertise is
required, the number of on-going projects exceeds the Citys internal management capacity and specific outcomes
need to be achieved. The program managers will provide infrastrcuture assessment, project planning and delivery
services. They are also tasked with keeping the public informed, assiting to identify and apply for external funding
The program manager will also prepare annual CIP project updates; develop a green infrastructure strategy as well
as standards and specifications. Estimated program management costs were included in the CIP budget for Year 1
and it is envisioned that program management services will be on-going with the PMs engagement scalable based
upon the program worklload.
COMPLIANCE MONITORING AND REPORTING
Pursuant to Section 27-65-241 (7)(h) of the Mississippi Annotated Code, the commission shall monitor the
compliance of the municipality with the master plan. In order to do so, a process has been established for
compliance monitoring and reporting:
Compliance Objective
Eligible Expenditures
Tracking Revenues and

Expenditures
Annual Audit
Process
This master plan has documented what are to be considered eligible
expenditures. Annually the City will provide the updated Capital Improvement
Plan with the schedule of planned expenditures to the Commission for
compliance monitoring purposes, not approval.
The City will provide a monthly statement of revenues and expenditures and
changes in fund balance for tracking purposes. This statement will include
related grant funds, debt service and budgeted vs actual expenditures.
Revenues and Expenditures from the sales tax will be audited annually at the
time of the Citys annual audit in accordance with Generally Accepted
Government Auditing Standards and in conformance with the International
Standards for the Professional Practice of Internal Auditing.
Page | 18
Figure 4. Program Management Role and Responsibilities
Page | 19
URGENT NEEDS
It is difficult to predict when and where infrastructure will fail. In this year alone, the City has declared several
emergencies for infrastructure failures including the collapse of Robinson Road bridge, a 24-inch sewer collapse, loss
of a water treatment plant. From a public heath stand point there is no more critical issue than addressing the
corrosion control treatment at the water treatment facilities. Citizens repeatedly express concerns regarding the time
it takes to address issues. Because expenditures of the revenue are to be made at the discretion of the City, there
should be the maximum amount of flexibility to fund emergency contracts for repair or replacement of infrastructure.
As part of the program implementation strategy, urgent need contracts have been programmed in the CIP for eligible
infrastructure improvements.
Figure 5. Robinson Road Bridge Collapse
Page | 20
INFRASTRUCTURE SYSTEMS
In the following sections, details for each infrastructure system will be provided as follows:
State of Existing Assets

Historical Capital Investments and Typical Funding Sources
Compliance Requirements
Programmatic Initiatives
Investment Priorities
Table 6. Overview of Infrastructure Improvement Needs

Assets Eligible for Sales Tax Funding
Required Improvements
Roads and Bridges
Over 300 miles of roadways identified are in need of

resurfacing (milling and overlay); 10% of roadways identified
require complete reconstruction; ADA Compliance and Signal
Upgrades; MDOT State Aid has evaluated the Citys 150+
bridge structures and recent results show that 19% of the
Citys bridges require replacement of critical maintenance.
1200 maintained miles of roadway (2,055 lane miles)

150+ bridges and hydraulic structures
Drainage
14 major drainage channels and tributarys; unknown
miles of storm drain pipe and appurtenances
Water
1100 miles of water main; two water treatment
facilities; 15 storage tanks and water system
appurtenances
Sewer
950 miles of sewer main; three wastewater treatment
plants and 98 pump stations
Neighborhood flooding, channel erosion and structural failures

and upsizing drainage conveyance; estimated need of over
$950M over 20 years
40% system water loss; 8% of the system is over 100 years
old; 97 miles of 2 to 4-inch pipe need to be upsized; cast iron
pipe replacement and water treatment plant upgrades for total
estimated improvement need of over $520M
Estimated consent decree program improvements estimated at
$400M
Page | 21
ROADS AND BRIDGES

The City of Jackson is responsible for maintenance of 2055 lane miles of roadway in the City of Jackson.
This includes major gateways, arterials, collector roads and residential neighborhood streets. In addition
to responsibility to maintain roads the City is also responsible for maintaining associated signage and the
signalization network including above and below ground infrastructure of over 2,000 signals across the City and over
300 intersections. Adjacent sidewalks, where they exist, and other structures in the Citys right-of-way must also be
maintained. The Traffic Maintenance Section of the Infrastructure Management Division maintains 324 traffic signals
within the city limits. This number includes 47 signals on Mississippi Department of Transportation highways that the
City must maintain by statute. Approximately half of the traffic signals are operated by equipment cabinets that are 25
to 40 years old and/or controllers that are over 15 years old. Most signals utilized in-ground loop detectors that are
subject to frequent cuts and failures due to poor asphalt and shifting yazoo clay. Traffic maintenance also provides
limited maintenance to the traffic monitoring system that is shared with MDOT.
Page | 22
There are over 150 bridge structures throughout

the City of Jackson including timber bridges,
concrete bridges and concrete box culvert
structures. The average life of the bridge
structures currently in service is 35 years. All bridge structures
are inspected every two years by the Mississippi Department of
Transportation State Aid Division; however, in-house staff in the
Engineering and Infrastructure Management Divisions regularly
monitors bridge structures to assess safety concerns. This
diligence and use of in-house expertise has resulted in removing
bridges from service prior to collapse.
STATE OF EXISTING ASSETS

ROADS
In 2014, the Central Mississippi Planning and Development District (CMPDD)
performed a pavement condition assessment of all the principal and minor
arterial streets and collector streets within Hinds County including an
assessment of the pavement condition on a scale from 1 Good Condition to
5 Worst Condition (See Appendix C).
The assessment provided maintence recommendations for each street based
on its roughness and condition. Streets were either satisfactory, required
patching or crack sealing, replacement of a surface coat, an overlay of
asphalt, or would need to be rebuilt/ replaced (reconstructed). Street
reconstruction i.e. rebuilding or replacing a street is the most costly and has
been estimated at approximately $1M per mile to complete. This estimate
includes milling, replacement of subbase, new asphalt, restriping and
replacement of stom drains. An averag of 3 lane miles per mile of road was
used. Overlaying streets is the second most costly maintenance strategy with
the cost of resurfacing estimated to be $150,000 per lane mile. This includes
milling and leveling (to align with existing curb and gutter systems), overlay of
asphalt, and restriping.
The City has used this assessment along with internal data such as possible
external funding opportunities, service requests, and upcoming economic
development plans to begin programming streets as future Capital
Improvement Projects.
Page | 23
Analyzing Data to Prioritize Streets

Major Streets (Principal / Minor Arterials & Collectors):
Major Streets selected for improvement are evaluated based on data provided by CMPDD and divided into three
categories: little to no work needed, resurfacing, and reconstruction. The main factors taken into consideration are:
Pavement condition index (PCI)

Reconstruction Score
Traffic volumes
1.1 Pavement Condition Index (PCI)
The PCI is a numerical indicator based on a scale of 0 to 100. The

PCI measures the pavements structural integrity and surface
operational condition. Its scale and associated ratings are shown in
Table 7 and Table 8. The PCI rating also gives a good indication of
the pavement service life and thus an aid in scheduled maintenance
operation.
In the analysis of Major Streets using CMPDD data, weighted scores
are given to streets based on PCI values (See Table 7). Streets with
PCI ratings above 85 are given a score of zero (0). A zero (0) value
indicates high service life and good pavement condition. Streets with
PCI values above 85 would not require resurfacing, but would
instead be considered for possible patching or crack sealing
depending on the recommendations from CMPDD. Streets with
useable service life, but with ratings below 85 are assigned values
for constructability (OVERLAY) as shown in Table 8.
PCI ratings below 37 fall in the poor to very poor range and therefore
require some reconstruction. A value of zero is given if the PCI rating
is 37 and below. Also, if CMPDD recommendation for maintenance
is to rebuild/reconstruct street, a zero (0) value is given.
Table 7. PCI Rating Scale

PCI
RATING
100
Excellent
85
Very Good
70
55
40
25
10 and below
Good
Fair
Poor
Very Poor
Failed
Table 8. PCI Rating Scale Scoring Values

PCI VALUES
SCORE
<25
100
26-40
80
41-55
60
56-70
40
71-85
20
>85
0
1.2 Traffic Volumes
Table 9. Traffic Volume Score

Traffic Volume
Score
Mean
7081
STD
5533
23679
18147
100
12614
75
7081
50
1548
25
Streets with high traffic volumes are given priority based on a weighted
scale. Streets with two (2) standard deviation above the mean are given
100 points and streets with one (1) standard deviation below the mean
a score of 25.
1.3
Final Analysis
The final score assigned to each street is a summation of values assigned

based on PCI, reconstruction score, and score based on traffic volume.
The higher the number, the greater the priority for maintenance.
Page | 24
Based upon the analysis performed, some streets had higher priority score but werent chosen for Year 2 Operation
Orange Cone. Streets with higher traffic volume were given high priority with regards to overlay. Also, priority was
given if street was a major gateway to commercial areas and connection to interstate. A representation of major streets
from all Wards were selected. Appendix C: Table 1 Streets lists the major streets where condition assessments
have been performed.
Neighborhood Streets:
The data provided by CMPDD is useful for tracking the condition of many arterials and collectors; however, there are
a number of streets that the City is responsible for maintaining that are not principal or minor arterial streets or
collector streets. These are shorter neighborhood streets that connect the identified collector streets to the homes of
residents. To have a more comprehensive understanding of the condition of City streets, an additional assessment
has begun on neighborhood streets. This assement was done in steps to establish funding priorities.
Step 1: DPW considered all streets with available priority rating ( as of now only those streets that were identified in
GIS database are taken into account). These were streets first rated by the Department in 2007. These streets
served as a basis for reavaluation and the streets rated the lowest in 2007 were reevaluated first. In addition to this
list, recommendations from the Commission Board, City Council, and general public through public outreach were
considered.
Step 2: DPW took past resurfacing data to update the compiled list so that streets that were resurfaced since 2007
were given a lower priority rating. This allowed the Department to focus on the most neglected streets.
Step 3: DPW analyzed service request data to determine the impact each street would have on the general public.
Streets with mutliple service requests were deemed a higher importance to citizens than streets with no reported
service requests.
Step 4: DPW conducted field visits of each street by Ward to assess its current condition and assign a new priority
rating ranging from 0-1000. The lower the score, the higher the priority. This process allowed the City to identify
streets with the highest priority rating from above group of streets.
Step 5: DPW shared collected data with stakeholders and received feedback on the streets identified. New streets
identified through this consultation process were included and evaluated.
Appendix D: Operation Orange Cone for Neighborhood Streets lists condition assessment results where it has
been performed for over 400 streets in preparation of the final master plan and prioritization of Program Year 2 street
resurfacing program.
Bridges:
The Mississippi Department of Transportation, State Aid Division conducts annual inspections of City owned bridges
and assigns each bridge a sufficiency rating. The sufficiency rating formula provides a method of evaluating highway
bridge data by calculating four separate factors to obtain a numeric value which is indicative of bridge sufficiency to
remain in service. The result of this method is a percentage in which 100 percent would represent an entirely
sufficient bridge and zero percent would represent an entirely insufficient or deficient bridge. The formula considers
the structural adequacy; functional obsolescence and level of service; and essentiality for public use.
Page | 25
Recent results of the MDOT State Aid inspections show that 19% of the 150 bridge structures are in need of
replacement or critical maintenance. Below is a sub-set of the Citys 150 bridges with a suffinciency rating less than
60.
Planned Bridges FY 15-FY 17

60
50
40
30
20
TERRY ROAD
JAYNE AVE
BEASLEY
ROAD
COUNTY LINE
RD
WOODROW
WILSON
WESTBROOK
RD
ADKINS BLVD
CAVALIER DR
HAWTHORNE
ST
DERRICK ST
MCCLUER RD
S MILL ST
MCDOWELL
RD
OFC THOMAS
CATCHIN
SOUTH WEST
STREET
GREENWOOD
AVE
COUNTRY
CLUB RD
MONUMENT
ST
MAYES ST
HANGING
MOSS RD
ROBINSON
RD
READY MIX
STREET
COUNTRY
CLUB DR
ALTA WOODS
BLVD
10
Figure 6. Bridges Programmed in Comprehensive Capital Improvement Plan for FY15-17

HISTORICAL INVESTMENTS AND FUNDING SOURCES
The City has typically funded roadway improvement projects with General Funds and grant funds including
Community Development Block Grant Funds, funding from MDOT and STP funds through the CMPDD. The City has
historically committed $1M a year to street resurfacing; which could in no way keep up with the needed investment to
resurface streets on a continuous basis. The passage of the 1% sales tax, will allow the City to address more
mileage in the street resurfacing program.
Bridge projects have been largely funded by road bond funds, Local System Bridge Program (LSBP) funds and direct
Federal appropriations. Recent investments have been made to address deficiencies of the South Street bridge,
Forest Hill Road bridge and the Brookwood Drive bridge.
Page | 26
COMPLIANCE PROGRAMS/PRIORITIES
The Americans with Disabilities Act (ADA) law, specifically Titles II and III governs transportation and public
accommodations for people with disabilities. The City is in the process of implementing an ADA Transition Plan to
remove physical barriers to accessibility and incorporate ADA compliant features in right-of-way improvements
including curb cuts and sidewalk modifications during roadway and sidewalk improvement projects.
The Federal Highway Administration (FHWA), which has oversight of surface transportation programs and sets
minimum requirements and standards for transportation infrastructure, has established an asset management focus.
To best service and maintain our Bridges, the Engineering Division will adopt the Systematic Preventive Maintenance
Program (SPM) that is currently used by FHWA as part of our Department-wide Asset Management Initiative. The
AASHTO Subcommittee on Maintenances definition of preventive maintenance includes the phrase a planned
strategy of cost-effective treatments. An SPM program is based on a planned strategy that is equivalent to having a
systematic process that defines the strategy, how it is planned, and how activities are determined to be cost effective.
An SPM program for bridges can be defined as a planned strategy of cost-effective treatments to existing bridges
that are intended to maintain or preserve the structural integrity and functionality of elements and/or components, and
retard future deterioration, thus maintaining or extending the useful life of the bridge.
PROGRAMMATIC INITIATIVES
Given the magnitude of the investment needed to improve the condition of the Citys streets, upgrade and innovate
our signalization and bring the City into full compliance with ADA requirements the City recognizes the need to invest
smartly. This means addressing the underlying issues of water and sewer utility failures, drainage issues and
flooding that cause standing water. These chronic issues have led to severe degradation of the Citys streets. DPW
has therefore initiated a DIG ONCE philosophy requiring utilities are addressed before roadways are resurfaced
including a street cut moratorium by third party utilities and curb to curb restoration of cuts to newly resurfaced
streets. A review of past roadway resurfacing projects shows that resurfaced streets have been cut repeatedly due
to utility failures. This is a major driver for using an integrated planning approach to identify all opportunities for
infrastructure investment in a project location. This integrated planning approach will lead to implementation of
Complete Streets and Green Streets projects. Implementation of the ADA Transition Plan is also a programmatic
initiative.
Page | 27
Infrastructure Management
Paved Streets Division CSRs
OPEN
Utility Cut Repair
Street Patching
Pothole Repair
Paved Streets/In-house
Work Orders
Leveling Dip/Uneven
Pavement or
Concrete/Patching
Driveway Entrance Repair
Curb & Gutter Repair
Resurfacing/Paving
6000
5500
5000
4500
4000
3500
3000
2500
2000
1500
1000
500
0
CLOSED
Figure 7. Open vs. Closed Service Requests (2014- May 2016)

While it is envisioned that major gateways, arterials and collector streets will be addressed as part of planned capital
projects; DPW will initiate a renewed 5-year streets resurfacing program called Operation Orange Cone. This
program will be driven by condition assessment and pavement management data collected as part of the Citys
pavement management system, the number of utility cuts and other data to identify priorities for each Ward of the
City. The street resurfacing program will be part of our new asset management initiative where we will be investing
money wisely to extend the service life of our streets by using preventive maintenance measures before the roadway
reaches a point of deterioration that requires a more sizable investment and planning. As additional data including
funding availability are reviewed, goals for city-wide Street resurfacing and maintenance will be established. This
program will be implemented using a combination of in-house crews and contract labor starting with the street listed
in Appendix C & D. In-house crews will also continue to address pot hole related service requests; however, street
resurfacing by contract will address both potholes and street cuts.
POTHOLES vs UTILITY CUTS
Page | 28
In the past, street resurfacing has been prioritized utilizing the Citys Pavement Management System. This system
requires all streets to be evaluated every five years and assigned a priority rating from 0 to 1000. Streets rated 300
or below were considered for resurfacing provided there was adequate budget. Ratings under the current system for
streets across the City are presented in the Tables in Appendix C and D.
Implementation of a systematic preventive maintenance program (SPM) will assist the City in qualifying for available
Federal Funds for bridge replacement or rehabilitation. In addition to developing a formal bridge maintenance and
asset management program, the 1% Sales Tax funds will be used toward implementation of a Jackson Safe Bridges
program including timber bridge replacement. This program was submitted as a Public-Private Partnership (P3)
Program in response to the US Department of Transportations Fall 2014 request for P3 pipeline projects and
presents a way to leverage the limited revenues being generated by the sales tax.
Also under the 1% Sales Tax program, the Traffic Engineering section will initiate Operation Green Light a
comprehensive program to make upgrades to the Citys signal network to compliment investments in rebuilding and
resurfacing City streets.
INVESTMENT PRIORITIES
As evidenced by the number of service requests for potholes and utility cuts, roadway improvements in the City of
Jackson is an investment priority for use of the 1% Sales tax funds. We understand that the condition of the roads in
Jackson not only impact public perception of the City, but there are real impacts to vehicles traveling our city streets
including service and emergency vehicles. The limited investment in upgrading the Citys roads has been due to
limited available funds. The deterioration of roads and the increasing number of utility cuts due to pipe failures has
outpaced the production of in-house crews that are responsible for roadway maintenance because many of the roads
are beyond a state of repair and instead need complete reconstruction. The investment priorities for our roads are as
follows:
Development of gateway improvement projects using Complete Streets or Green Streets concepts that
incorporate integrated infrastructure improvements, roadway reconstruction where required, greening, utility
work, signal upgrades, ADA compliance measures and right-of-way improvements to draw economic
development and improve the vibrancy of communities
Capital projects that address the major streets and neighborhood streets
Projects where grant funding has been identified and allocated to the City for
specific roadway projects
Operation Orange Cone: Initiation of an in-house and contractor based roadway
resurfacing program to improve the condition of streets while planning for capital
projects. This will also require investing in additional and upgraded capital
equipment.
Upgrades to the Citys signal network utilizing new technology and implementing measures to sustain
signals.
New developments served by bridge or culvert structures
All major arterial bridge crossings
Replacement of all timber bridge structures
Page | 29
DRAINAGE
The City of Jackson is responsible for operation and maintenance of a separate stormwater drainage
system referred to as the Municipal Separate Storm Sewer System (MS4). Stormwater drainage in the
City of Jackson is typically collected in roadside ditches, open channels, catch basins and storm drains
then conveyed to major drainage channels and ultimately the Pearl River. The City of Jacksons Stormwater
Drainage System is comprised of 15 major drainage channels, over 200 minor tributaries, small streams and
roadside drainage ditches. The miles of separate storm drains, number of storm drain manholes, storm catch
basins/storm drain inlets must be determined.
Page | 30
Table 10. City of Jackson's Major Drainage Channels

White Oak Creek
Purple Creek
Eastover Creek
Hanging Moss Creek
Belhaven Creek
Bogue Chitto Creek
Eubanks Creek
Town Creek
Lynch Creek
Three Mile Creek
Hardy Creek
Cany Creek
Trahon Creek
Big Creek
Smith Creek

The major drainage channels, minor tributaries and streams that flow through the Citys neighborhoods, in many
areas adjacent to private property, have degraded over time with heavy rainstorms causing scour and erosion. The
erosion of these natural channels and drainage ways has
1200
led to loss of property and in some cases threats to public
health and safety. During heavy or at times moderate
1000
rains, the Citys storm drain system becomes
Ditch
800
overwhelmed leading to flooded streets and standing
Maintenance
water. This issue is attributed to the capacity of the
600
Drainage
system to handle the amount of rainfall, the condition of
Maintenance
400
the system that inhibiting the proper continuous flow of
Erosion
200
drainage and difficulty in proactively maintaining drainage
Control
ways and the storm drain infrastructure to keep them clear
0
of debris.
Number of SRs 20112015
While the Bridges and Drainage Section of the

Infrastructure Management Division is responsible for
maintaining the drainage system and carries out activities
including repairing and replacing catch basins, storm drain
inlets, storm drain pipes, and removing debris from
drainage channels to promote proper drainage flow, limited
resources has made it difficult to keep up with service level
demands.
This section is responsible for implementing a Pipe

Replacement Program. Many of our storm drain pipes are
made of corrugated metal which have begun to rust and
deteriorate, and the purpose of this program is to replace
those storm drain pipes to promote proper drainage. This
section is also responsible for trimming and removing dead trees from the Citys right of ways, and also removing
trees that have fallen into drainage channels. During adverse weather, Bridges and Drainage is also responsible for
removing fallen trees from City streets and responding to areas that are experiencing flooding issues.
Page | 31
As part of the Federal Clean Water Act, the U.S. Environmental
Protection Agency (US EPA) has developed stormwater
management regulations as part of a National Pollutant Discharge
Elimination System (NPDES) permitting program to improve the
water quality of surface waters like the Pearl River. Under this
program, the City of Jackson is considered a Phase I MS4 NPDES
permitted municipality and required to hold a 5-year permit for
management of stormwater in the City. The City is on its second
generation of the permit and will be required to renew its MS4
Phase I Permit in 2017.
As part of the requirements for the program, the City is required to develop and maintain a stormwater management
program that implements best practices to protect surface water quality and prevent high volumes of stormwater
runoff, or drainage, from causing flooding. Best practices include structural improvements to address erosion,
increase capacity of the storm drainage system and implementation of green infrastructure practices that retain and
filter stormwater drainage; or non-structural practices like implementation of routine and preventive maintenance
programs. The City is required to track the progress towards these goals, implementation of best practices and the
requirements in the MS4 Permit to provide a report to MDEQ on an annual basis. The MS4 program also includes
six control measures for which the City is required to implement best practices:
Public Education and Outreach

Public Involvement and Participation
Illicit Discharge Detection & Elimination
Construction Site Stormwater Runoff Control
Post-Construction Stormwater Management in New Development and Redevelopment
Pollution Prevention and Good Housekeeping for Municipal Operations
It is anticipated that the MS4 permit renewal in 2017 will bring with it requirements to use innovative practices
including green infrastructure and low impact development to better manage stormwater drainage. This program
provides an opportunity to restructure the Citys stormwater management program, update best practices and
implement a green infrastructure strategy in the City that meets several goals and objectives including increasing the
Citys tree canopy. This program also provides an opportunity to implement green solutions along drainage ways
that not only stabilize channels but also provide water quality benefits.
In order to develop comprehensive sustainable solutions to localized drainage issues, the City understands that it
must develop a more comprehensive plan, watershed by watershed, to identify opportunities for improvement,
solutions to improve the drainage system and protect existing flood prone areas. This will require comprehensive
hydraulic and hydrologic modeling as well as identification, characterization and mapping of existing drainage system
components.
Page | 32
Based on historical data and the high volume of drainage complaints during and after storm events, DPW recognizes
a need to implement a routine and preventive maintenance program that limits the impacts of high frequency
rainstorm events. This program will be implemented by in-house staff as part of the Departments Asset
Management Initiative.
USE OF GREEN INFRASTRUCTURE
Green infrastructure uses vegetation, soils, and natural processes to

manage water and create healthier urban environments. The main
objectives of this approach include reducing stormwater runoff,
increasing adaptability to extreme weather, minimizing heat stress,
increasing biodiversity, encouraging food production, improving air
quality, promoting clean water, maintaining healthy soils, and
providing recreation, shade, and shelter. Green infrastructure is the
ecological foundation for social, economic, and environmental health.
Not only does it address regulatory requirements, but it makes
communities more vibrant. Building this type of infrastructure will
involve projects from restoring Smith Park to increasing the citys tree
canopy.

The City has typically funded drainage improvements with General Funds, Community Development Block Grant
Funds, and Federal Funds allocated by the Natural Resources Conservation Service to provide for open channel
stabilization and widening projects. In house crews have implemented a pipe replacement program to address
chronic drainage issues and supplement limited capital resources. Completed projects are listed in the table below.
The limited investment in upgrading the Citys drainage system and making much needed improvements throughout
the City has been due to not having the available funds or a sustainable dedicated funding source. As evidenced by
the number of service requests for drainage related issues, the damage to public and private property caused by
repeated flooding; the miles of drainage ways including road-side ditches that need to be assessed and addressed;
drainage improvements in the City of Jackson is an investment priority for use of the 1% Sales tax funds. Specific
investment priorities include:
Neighborhood drainage improvement projects that will mitigate localized flooding in communities.
Regional stormwater management improvement projects including regional detention systems to control
runoff.
Watershed restoration projects incorporating upland stormwater quality and quantity control practices to
improve surface water quality; limit sediment erosion and mitigate flooding by controlling stormwater flows to
downstream areas.
Page | 33
Drainage channel improvement projects that where feasible, restore the channel to a natural state to
improve water quality and stabilize the channel to protect against erosion. Project types include stream
restoration, channel stabilization/enhancement and flood control. Priority segments of major drainage
channels are presented in the Comprehensive CIP.
TARGETED STREET FLOODING IMPROVEMENTS

This includes culvert replacements, tree and debris removal, outfall cleaning and rip-rap protection along Belhaven
Creek, Caney Creekn, Eastover Creek, Eubanks Creek, Hanging Moss Creek, Hardy Creek, Lynch Creek, Purple
Creek, Three Mile Creek Trahon Creek, and White Oak Creek as to alleviate surface flooding in these areas.
Imrpovement needs over a 20-year program are currently estimated to be over $27M.
NEAR TERM PROTECTION MEASURES
Near term protection measures includes bank stabilization and channel restoration along Belhaven Creek, Big Creek,
Bogue Chitto Creek, Caney Creekn, Eubanks Creek, Hanging Moss Creek, Lynch Creek, and Three Mile Creek.
Improvement needs are currenty estimated to be approximately $325,688,886M over 20 years.
LONG-TERM CAPITAL IMPROVEMENTS
Long-term capital improvements include 100-yr storm channel capacity improvements, capacity retention/detention to
hold stormwater and/or slow down the flow of stomrwater to adress flooding and erosion issues as well as green
infrastructure projects that provide for water quality and drainage management with more aestectically pleasing
vegetated practices. The combined improvement need over 20 years is estimated to be approximately
$642,330,858M.
Page | 34
WATER
The City of Jackson supplies high quality drinking water to consumers in the Cities of Jackson and
Byram. The distribution service area is approximately 150 square miles and provides potable water to
about 174,000 people. The Citys water supply system includes two water treatment plants, O.B. Curtis
(50 MGD) and J.H. Fewell (32 MGD); one booster pump station; and sixteen elevated and ground storage tanks with
a combined storage capacity of 21 million gallons. Drinking water is distributed through 881 miles of water mains
ranging in size from 2-inches to 48-inches in diameter. Most of these mains are constructed of cast iron, but some of
the larger mains are steel or reinforced concrete. Other system appurtenances include 4,000 valves and 7,000 fire
hydrants.
Page | 35

The ice storm of 2010 highlighted the vulnerabilities of the water system when mass water outages were experienced
across the City, particularly in the Downtown area. While the City produces high quality water, an estimated 40% of
the water we are paying to treat is unaccounted for or lost in water main leaks and breaks as well as leaking valves
and hydrants. Consumers are experiencing discolored water due to build-up in the water mains that have been in
service for 60 to 100 years. These issues impact the reliability of the existing system and investment in replacing
water mains is needs to reduce water loss and improve water quality received at the tap. In some small areas of the
City still have 2-inch to 4-inch diameter water mains, adequate fire protection is a concern; these areas are an
investment priority for small diameter pipe replacement.
The water treatment plants and storage facilities are also in need of upgrades to maintain service levels; however,
those improvements will not be included in the scope of the 1% sales tax program.
Operation, maintenance and capital improvement of the water system is governed by the federal Safe Drinking Water
Act and the Mississippi Safe Drinking Water Act of 1997 and Mississippi Primary Drinking Water Regulations. The
Citys Water and Wastewater Operation is responsible for ensuring that our system meets or exceeds required
regulations, standards and the requirements of the States Public Water Supply Program including identification and
elimination of operational and maintenance problems that may impact water quality. Replacing water mains that are
leaking and have build-up of deposits causing discolored water will aid in meeting this objective and cut down on the
number and frequency of Boil Water Alerts that are issued.
Given the high percentage of water loss from the system and the repeated water outages; the water system is a
primary target for the Departments Asset Management Initiative. In order to reduce water loss and eliminate water
system failures, investment must be made in replacing water lines that are beyond their useful life. Under the scope
of the 1% Sales Tax, a water line replacement program will be initiated starting with replacement of 2 to 4-inch water
lines as well as cast iron pipeline replacement.
Additional programmatic initiatives include the Water Maintenance Division initiating an overall water system
preventive maintenance program to:
Assist the Fire Department with hydrant maintenance and asset management
Valve exercising, maintenance and replacement
Water system flushing and where possible water main cleaning and lining
Water system audit including development of a water system hydraulic and water quality model
Mapping the water system and related appurtenances
These initiatives may result in capital projects or in-house asset program management activities that would qualify for
use of the 1% sales tax revenues.
Page | 36

The City funds water system improvements using water revenues generated from the water charges on consumers
water bills. Additional funding has been in the form of grants, loans or bond proceeds. While the 2013 water rate
increase of 29% has generated additional revenue; it is just covering the cost of service for operation and
maintenance and repayment of debt service on completed or on-going projects. Recent on-going and completed
projects include:
Water Infrastructure Improvement Program (Siemens) $90M On-going

Prestressed Concrete Ground Storage Tank Contract 1 - $2M
24 Water Transmission Main Contract II - $1M
Maddox Booster Station Contract III - $2.2M
Fortification Water Tank - $4M
48 Water Transmission Improvements $5M On-going
Because the water system has a sustainable dedicated funding source, water system related projects recommended
for funding by the 1% sales tax revenue are critical improvements to provide adequate fire protection and address
emergencies by supplementing water funds. This will include upgrading 2 to 4-inch water lines and emergency
repairs for unplanned failures. Water system upgrades that can be integrated with other special sales tax capital
projects will utilitize special sales tax funds as well. Projects that facilitate economic development and urgent need
improvements to the water system to protect public health will also be eligible to utilize special sales tax funds.
Page | 37
SEWER
The City owns and operates three wastewater treatment facilities, plus numerous interceptor and
collector sewers throughout the metropolitan area, and provides sewer services to the City and parts of
Hinds County, western Rankin County and eastern Madison County. The primary wastewater treatment
facility, Savanna Street Wastewater Treatment Plant (WWTP), has a 46 million gallons per day (MGD) permitted
capacity and was placed in operation in 1975. The Trahon WWTP has a capacity of 4.5 MGD and treats flows from
the Trahon and Big Creek Basins. The Citys third treatment facility is located in the Presidential Hills subdivision in
the northwest part of the City. It was recently upgraded to a new facility providing 0.75 MGD of permitted treatment
capacity. Wastewater flows to these facilities through a collection system with pipes ranging in size from 4-inches to
96-inches in diameter.
Page | 38

In 2013 the City entered into a federal Wastewater Consent Decree due to repeated sanitary sewer overflows and
wastewater treatment plant by-passes. The
Operation, maintenance and capital improvement of the wastewater collection system is governed by the federal
Clean Water Act and the Mississippi Department of Environmental Quality WPC1 Regulations. In November 2012,
the City reached a settlement with the U.S. Environmental Protection Agency (EPA), the Department of Justice, and
the Mississippi Department of Environmental Quality (MDEQ) to make improvements to the Citys sewer systems to
eliminate unauthorized overflows of untreated raw sewage (Sanitary Sewer Overflows or SSOs) and unauthorized
bypasses of treatment at the Savanna Street Wastewater Treatment Plant (WWTP).
The consent decree requires Jackson to implement comprehensive injunctive relief within approximately 18 years,
with the majority of the work being done in the first 11 years of the consent decree program. The remedial measures
required by the consent decree include:
Early action projects to upgrade the Presidential Hills WWTP and make improvements to Savanna Street
WWTP
Evaluation and rehabilitation of the wastewater collection and transmission system
Development and implementation of a performance evaluation and composite correction program for the
Savanna Street wastewater treatment plant
Development and implementation of programs to insure proper capacity, management, operations and
maintenance of the sewer system
The primary initiatives for the sewer system are implementation of the consent decree programs and asset
management to maintain compliance and eliminate sanitary sewer overflows. The consent decree program projects
will be considered in conjunction with the stormwater projects in an integrated plan designed to improve water quality
through both gray and green infrastructure improvements.
The City funds wastewater system improvements using sewer revenues generated from the sewer charges on
consumers water bills. Additional funding has been in the form of grants, loans or bond proceeds. While the 2013
sewer rate increase of 108% has generated additional revenue; it is just covering the cost of service for operation
and maintenance and repayment of debt service on completed or on-going projects. Recent on-going and completed
projects include:
West Bank Interceptor Flow Monitoring $350K On-going

West Bank Interceptor Condition Assessment $600K On-going
Wastewater Collection System Flow Monitoring $200K On-going
Savanna Street WWTP Influent Pump Station $2.5M On-going
Page | 39
WWTP Comprehensive Performance $700K on-going

Evaluation/Composite Correction Program $1M On-going
WWTP Solids Removal Project $10M On-going
Presidential Hills WWTP Improvements $7M
West Bank Interceptor Rehabilitation Phase 3 $12M On-going
West Bank Interceptor Rehabilitation Phase 4 & 5 $19M On-going
Because the wastewater system has a sustainable dedicated funding source, sewer system improvement projects
are a low priority for 1% sales tax funds; with the exception of sewer collapses and other urgent need repairs or
where there are integrated infrastructure improvement opportunities. The CIP designates those projects that are
sales tax eligible and candidates for sales tax funding.
Page | 40
CAPITAL IMPROVEMENT PLANNING

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

Timeline by fiscal year for the planning, design and/or construction/completion of the project or capital
purchases
Planned funding sources and financing options
Justification for the project; alignment with established criteria
The City of Jackson has been without a formal CIP for over ten years. The City has elected to develop a five-year
Comprehensive Capital Improvement Plan for Infrastructure Improvements which will be updated annually to include
new projects, reflect changes in priorities, and program a future year with the first year of the plan being the current
fiscal year.
Capital projects/expenditures are those that maintain, enhance, alter or improve an asset or infrastructure and must
meet the following criteria:
Program management to provide professional support services (including scope management, cost control,
schedule management and quality control), technical expertise and public engagement required for
successful projects delivery
New construction, expansion, renovation, or replacement project for an existing facility or facilities having a
total cost of at least $10,000 over the life of the project; project costs may be expended in phases and
includes planning, condition assessment, cost of land acquisition, architecture/engineering professional
services, construction contracts and other related contract services for project delivery such as public
information and outreach
Major maintenance or rehabilitation project for existing facilities with a cost of $10,000 or more and an
economic life of at least 10 years.
Purchase of major equipment (assets) costing $50,000 or more with a useful life of at least 10 years.
The Citys current 5-Year Comprehensive Capital Improvement Plan lays out the capital improvement needs for
Fiscal Years 2016 2020. The FY 2016-2020 Capital Improvement Plan (CIP) is a forward looking program outlining
the City of Jacksons priorities for infrastructure improvements over the next five years. The general CIP Planning
process is shown in the following figure.
Page | 41
FIGURE 8. Capital Inprovement Planning Process
Infrastructure
Improvement &
Capital Equipment
Needs Identified
Project
Development &
Cost Estimating
CIP Expenditure
Requests & Annual
Updates
CIP Annual Budget

Development &
Financing
ASSESSMENT CRITERIA
As part of the CIP planning process, all proposed capital expenditures will be aligned with criteria that drive the need
for the expenditure. The criteria, including 1% sales tax funding eligibility, is representative of policy directions for
infrastructure improvements as well as short and long-term objectives of the City. This is meant to provide an
assessment of the relative priority of capital expenditures and resulting funding commitments. The assessment
criteria are listed in Table 11.
Table 11. Project Assessment Criteria
Health, Safety &
Welfare
An assessment of the degree to which the project improves the health, safety and welfare of
the community in which the project is sited, as well as improvements across the City. For
example, projects that result in improved fire flows, reduction of accidents, improved structural
integrity, and mitigation of health hazards and resolution of exigent circumstances.
Regulatory or
Legal Mandates
An assessment of the degree to which the project is under a regulatory order or other legal
mandate, or meets a federal, State or local regulatory requirement. For example, projects that
are required by consent decrees, court orders, and other legal mandates.
Integrated
Improvements
An assessment of the degree to which a project meets multiple infrastructure system

improvement needs. For example, a roadway reconstruction project that addresses flooding
issues, signals, ADA compliance needs and utility improvements vs a project that just
addresses repaving a road.
Operational
Improvements
An assessment of the degree to which the project supports operational efficiency and effective
delivery of services. Improves operational functions and services versus Sustaining operational
functions and services.
Page | 42
Reduction in
Operational
Costs
An assessment of the life-cycle costs of proposed improvements compared to the current

operational costs.
External
Funding
Opportunity
Projects funded by or with the potential for funding by grants or other external funds including
public/private partnership financing opportunities.
Community
Demand
An assessment of the degree to which the project meets a community need or responds to
community demand, including resolution of CSR complaints.
1PTax Eligible
An assessment of the eligibility of the proposed expenditures for municipal special sales tax
funding.
PROJECT/EXPENDITURE REQUESTS
On an annual basis CIP request forms will be used to compile information for the proposed expenditures in order to
be considered for funding. These request forms identify the proposed capital expenditures which allow for budget
planning and forecasting long-term capital funding needs. The project phases include:
Project Planning: Includes the development of the project scope, feasibility study, a design budget,
and order of magnitude construction budget.
Design: Includes the development of any environmental documents, legal documents, construction
plans and specifications, and a detailed construction budget.
Construction: Includes site preparation, utility and infrastructure placement, equipment installation,
construction, and environmental mitigation.
Equipment Purchase: Includes capital equipment purchases for routine, preventive and emergency
maintenance and repiar for public infrastructure assets.
FISCAL YEARS 2016 - 2020 CAPITAL PLAN

The Citys Comprehensive Capital Improvement Plan for Infrastructure, FY 2016 - 2020 is a forward looking plan
outlining the City of Jacksons priorities for infrastructure improvements over the next five years. The CIP considers
needed improvements that support the assessment criteria as noted above.
The current comprehensive CIP includes over 400 projects with an estimated cost of approximately $530.6 million
dollars for the 5-Year period. The table below summarizes the total of programmed capital expenditures included in
the FY20162020 Comprehensive Capital Improvement Plan by the Department of Public Works.
Page | 43
Table 12. Capital Improvements Program Summary, FY 20162020
Infrastructure System
Forecasted Program
Need
(5 to 20-Year)
5-Year CIP Total
Total Proposed Use of

Sales Tax Funding
Water
229,232,200.00
119,802,200.00
Wastewater
393,935,725.00
280,739,725.00
Stormwater (Drainage)
1,012,655,033.60
54,149,157.50
54,149,157.50
Roads and Bridges
87,630,381.32
75,938,965.32
75,938,965.32
Total
1,723,453,339.92
530,630,047.82
15,600,000.00
$ 4,500,000.00
$ 150,188,122.82
Breakdown of 5-Year CIP Total

Roads and Bridges
14%
Water
23%
10%
Wastewater
53%
Water
Wastewater
Roads and Bridges
Page | 44

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RENEW JACKSON

A MASTER PLAN FOR MUNICIPAL SPECIAL SALES TAX-FUNDED

Established and Adopted by the

FROM THE MAYOR

Delivering the Vision:

Duane O'Neil, President/CEO

MASTER PLAN DEVELOPMENT

INFRASTRUCTURE MASTER PLAN

ASCE estimated a needed infrastructure

INFRASTRUCTURE INVESTMENTS FY11-15

Figure 1. Total of Infrastructure Expenditures FY11-15

THE MUNICIPAL SPECIAL SALES TAX LEGISLATION

Costs associated with improvements of all eligible public infrastructure assets

CAPITAL IMPROVEMENT PLANNING AND PROJECT DELIVERY

INFRASTRUCTURE IMPROVEMENT OBJECTIVES

Stabilize critical infrastructure

STAKEHOLDER ENGAGEMENT/PUBLIC INFORMATION AND OUTREACH

Investment will be fair and equitable across

Road and Street Repair: This would typically refer to

DPW utilizes Pavement Assessment Data from the

Reconstruction and Resurfacing Projects Based on

A City specific plan does not exist; however, in 2015,

Water: This category refers to the Citys drinking water

Water Distribution System Rehabilitation Master

Sewer: This category refers to the Citys sewage

Drainage: This category refers to the Citys stormwater

IMP DEVELOPMENT AND IMPLEMENTATION

Condition of the assets

Identifying the assets developing a

Once priotritized the projects are budgeted in the CIP

Figure 3. Condition Assessment Data Analyzed

Table 4. Targeted Funding Sources to Leverage Sales Tax Revenues

Municipal Special Sales Tax

RENEW JACKSON IMPLEMENTATION STRATEGY

Development and implementation of a Year 1 CIP which

Tracking Revenues and

Figure 4. Program Management Role and Responsibilities

State of Existing Assets

Table 6. Overview of Infrastructure Improvement Needs

Roads and Bridges

Over 300 miles of roadways identified are in need of

1200 maintained miles of roadway (2,055 lane miles)

Neighborhood flooding, channel erosion and structural failures

ROADS AND BRIDGES

There are over 150 bridge structures throughout

STATE OF EXISTING ASSETS

Analyzing Data to Prioritize Streets

Pavement condition index (PCI)

1.1 Pavement Condition Index (PCI)

The PCI is a numerical indicator based on a scale of 0 to 100. The

Table 7. PCI Rating Scale

Table 8. PCI Rating Scale Scoring Values

1.2 Traffic Volumes

Table 9. Traffic Volume Score

The final score assigned to each street is a summation of values assigned

Planned Bridges FY 15-FY 17

Figure 6. Bridges Programmed in Comprehensive Capital Improvement Plan for FY15-17

Utility Cut Repair

Driveway Entrance Repair