HIGHLIGHTS OF THE FY 2022 - 2026 CIP - City of Chesapeake ...
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HIGHLIGHTS OF THE FY 2022 - 2026 CIP The Capital Improvement Program (CIP) is the City’s five-year plan for the acquisition, construction, maintenance, and improvement of facilities, major equipment, technology, and infrastructure. Investment in existing assets as well as the strategic planning of new and replacement assets is key to the success of Chesapeake. The CIP is a framework for establishing priorities, planning for future needs, and anticipating the impact of projects on the operating budget. Budgeted amounts in the CIP include “Appropriations to Date,” which are funds that have been appropriated by City Council in prior years and “Year 1,” referred to as the capital budget or CIB. The remaining four years shown in the CIP, years two through five are included for planning purposes only, and are not formally appropriated by City Council. Programming projects over a five-year period ensures that the City is budgeting for current needs and also planning for the future, helping to maintain the financial viability of the capital program over the long term. New for FY 2022 - 2026 For FY 2022 - 2026, the CIP has been prepared and is being presented in conjunction with the operating budget. This step is being taken to ensure the highest level of coordination between these two documents, as the decisions made regarding the operating budget and CIP have impacts on one another. In addition to producing a CIP document for FY 2022 - 2026, the Budget Office, in partnership with the Information Technology Department, is also releasing a new CIP website that shows all current projects on an interactive map of the City of Chesapeake. This new tool will allow users to click on areas of interest and explore the projects in the area. The tool will contain information about each project similar to what is provided in the CIP document including financial information, project description, project justification, comments about the project, and estimated completion dates. This tool will also allow financial or other information about projects to be updated throughout the fiscal year as amendments to the CIP are adopted by City Council. In the future, this tool will contain pictures as well as videos or other media related to significant projects. Two additional enhancements for the FY 2022 - 2026 CIP are the illustration of alignment between CIP projects and the Comprehensive Plan and a geographic designation for each project. The alignment with the Comprehensive Plan is shown in the document in two ways. First, is the designation of a goal area of the Comprehensive Plan for each project, which is shown on the project detail sheet. This designation, along with the identification of the Planning Area of the City in which the project is located is highlighted at the top of each page as shown below. For an example of how a project is aligned to the goal area of the Comprehensive Plan, see the section City of Chesapeake 50 FY 2022-2026
“Aligning the CIP to the Comprehensive Plan” found earlier in this document. In this section, the
objectives for each goal area are listed and a current project from the CIP is described relative to its
alignment with one or more of the objectives of the Plan.
Appropriations
The City’s FY 2022 - 2026 CIP (excluding appropriations to date) totals over $556.4 million.
Appropriations for the FY 2022 Capital Budget total $121.9 million. The following table shows the
program by section. As the table shows, the largest section of the CIP in terms of funding in FY 2022 is
Transportation; however, over the five-year plan, the Education section receives the largest portion of
funding.
Section FY 2022 FY 2023 to FY 2026 Total
Community Facilities 18,107,000 26,338,000 44,445,000
Economic Development 2,692,000 2,154,000 4,846,000
Education 17,875,000 155,500,000 173,375,000
Information Technology 8,890,000 33,274,000 42,164,000
Parks, Recreation, and Tourism 7,198,000 20,802,000 28,000,000
Public Safety 10,494,639 18,246,280 28,740,919
Public Utilities 20,772,000 92,082,300 112,854,300
Stormwater 8,655,000 7,350,000 16,005,000
Transportation 27,181,443 78,817,917 105,999,360
Total 121,865,082 434,564,497 556,429,579
In addition to categorizing projects by functional section, the CIP also categorizes projects by type. The
seven project types included in the CIP are Renovation or Rehabilitation, New Facility, Replacement,
Study, Addition or Expansion, System Acquisition or Upgrade, and Equipment. The pie chart below
shows the distribution of funding by project type over the five-year program. Over half of the FY 2022 -
2026 CIP is dedicated to Renovation or Rehabilitation projects that ensure the City is maintaining its
current assets and public infrastructure.
Programmed Funding by Project Type
Replacement
18.4% Addition or Expansion
15.4%
New Facility
5.2%
Study
1.2%
Equipment
0.5%
Renovation or System Acquisition or
Rehabilitation Upgrade
57.1% 2.1%
City of Chesapeake 51 FY 2022-2026Priority Projects
At City Council’s retreat in November 2020, a list of high-priority capital projects and focus areas (ex.
connectivity - sidewalks, trails, and gateways) was presented to Council. City Council endorsed these
projects and focus areas as important to achieving the City Council’s vision of making Chesapeake an
exceptional place to live, learn, work, farm, and play. The FY 2022 - 2026 CIP includes additional funding
for several of these high priority projects as shown in the table below:
Project Project Title Previously New Funding Total
Number Programmed Added in FY Project
Funding 2022-2026 Budget
01-150 Public Works/Public Utilities Operating Facilities
Replacement/Relocation 36,200,000 - 36,200,000
36-240 Enhanced Signage & Landscaping at Entrances
to the City 200,000 1,000,000 1,200,000
02-150 Facilities - High Priority Renewal and
Replacement - Phase III 24,128,501 4,000,000 28,128,501
16-230 Public Safety Facility Issue Studies - Feasibility &
Conceptual Design 750,000 - 750,000
04-220 City Fiber Optic Broadband Network 5,583,867 - 5,583,867
06-220 Tax System Modernization 10,750,000 14,000,000 24,750,000
08-260 Arterial and Collector Roadway Rehabilitation - 2,500,000 2,500,000
26-220 Citywide Sidewalk Installation 2,500,000 2,500,000 5,000,000
New Funding Added in Priority Areas $24,000,000
As the table shows, $24 million is being added in the FY 2022 - 2026 CIP to address these areas. Several
of these projects are critical to maintaining the City’s existing assets and infrastructure, while others
look to expand the City’s ability to provide outsanding service. While the CIP includes significant
investment in many priority areas, several of the priority projects are not receiving additional funding in
the 5-year plan. Additional information on priority areas that remain unfunded is discussed later in this
section.
While addressing high-priority projects is critical in the CIP, these projects only make up a fraction of the
total funding included in the 5-year plan. Each of the nine functional sections of the CIP contains a
number of projects designed to achieve community outcomes that are aligned with City Council’s vision
and are necessary to make the City of Chesapeake a great place to live, learn, work, farm, and play. The
following summaries provide some of the desired outcomes related to each section, any significant
changes, and how projects align with the stated outcomes.
Community Facilities
Desired Outcome
Operational Success - Facilities and equipment are maintained or constructed to ensure the
operational success of the programs for which they are utilized
This year’s CIP includes funding for several important renewal and rehabilitation projects that address
critical facilities needs. CIP 01-150 “Public Works/Public Utilities Operating Facilities
Replacement/Relocation” provides for the design and construction of new operational facilities for
Public Works and Public Utilities. The new facilities will replace the current operations facilities at the
Greenbrier/Butts Station Yards that have deteriorated to the point of being functionally inadequate for
safe and efficient provision of services. The newly constructed operations facilities will be hurricane-
City of Chesapeake 52 FY 2022-2026resistant to ensure the provision of continuity of government services. The new facilities will also be
more efficient than the multitude of modular buildings and sheds that currently occupy the campus. The
new facilities will also improve the longevity of major equipment that is currently stored outside due to
the lack of sheltered storage space.
Another critical Renewal or Rehabilitation project receiving additional funding is CIP 02-150 “Facilities -
High Priority Renewal and Replacements – Phase III.” Funding in this project is used to perform routine
and major maintenance projects on many of the City’s facilities including roofing, HVAC, and flooring.
The increased funding will be used to begin addressing the backlog of maintenance as identified by the
Public Works Department.
CIP 21-200 “ADA Door & Restroom Retrofits at Various Facilities – Phase I,” CIP 01-220 “ADA Facility and
Infrastructure Retrofits,” and CIP 04-210 “Social Services Building Restroom Renovation” all address ADA
compliance needs across several City facilities. These projects are intended to increase the accessibility
of City facilities and public sidewalks to meet current ADA standards and create more equitable access
to public facilities and amenities. Equitable access ensures the City is able to provide excellent service to
customers, City Council, and to employees.
The FY 2022 - 2026 CIP also includes two new Community Facilities projects. CIP 07-260 ”Voting
Equipment Replacement” will facilitate the replacement of voting equipment in order to comply with
State and Federal guidelines. This project was created in anticipation of the need to replace the existing
voting equipment within the next several years. This will ensure that the technology needed to engage
in an orderly and efficient voting process is in place prior to the technological or legal obsolescence of
the current equipment.
CIP 06-260 “Libraries - Russell Memorial Library Addition” is the second new project included in the FY
2022 - 2026 CIP and will fund the expansion of existing facilities at Russell Memorial Library in order to
facilitate provision of library services at an increasingly high level of demand in the Western Branch
area. The project is one of seven active library projects in the Community Facilities section of the CIP,
which provide for the maintenance of current Library facilities, expansion of the Russell Memorial
Library and parking at that location, and installation of Library Book Lockers in outlying areas to provide
greater access to residents in more remote portions of the City.
As these highlighted projects demonstrate, investments in community facilities such as the buildings and
equipment utilized by City employees and customers ensures that these tools are operationally
prepared for the successful provision of the multitude of programs and services offered by the City of
Chesapeake. Maintaining and improving these facilities helps to make Chesapeake an exceptional place
to live, learn, work, farm, and play.
Total appropriations for the Community Facilities Section in FY 2022 is $18.1 million with a 5-year total
programmed amount of $37.5 million (excluding previously appropriated funds).
Economic Development
Desired Outcomes
Retention of Current Businesses – Businesses currently located in Chesapeake stay in
Chesapeake and continue to prosper
Expansion of Current Businesses – Businesses currently located in Chesapeake are able to
expand
City of Chesapeake 53 FY 2022-2026 Attraction of new Business Investment – Businesses move to or expand in Chesapeake investing
new capital in the City
The Economic Development Section of the CIP contains projects focused on business retention,
expansion, and new development. A project included in the section aligned with these outcomes that
will be fully funded in FY 2022 is CIP 06-250 “Industrial Waterfront Study.” This study is anticipated to
yield recommendations for better use of under-utilized properties to enhance the economic viability of
the City’s industrial waterfront along the Southern Branch of the Elizabeth River. Study outcomes will
include a "highest-and-best-use" analysis of waterfront properties based on land use, zoning,
infrastructure, and risks and implications of documented sea level rise and recurrent flooding to
vulnerable areas. Given its proximity to the Port of Virginia, the economic development potential for this
area is significant.
Another project included in this section focused on redevelopment is CIP 04-250 “Great Bridge Village
Plan Implementation Seed Funding.” This project provides seed funding to spur implementation of the
2008 Great Bridge Village Design Guidelines, supported by the Great Bridge Historic Gateway Overlay
District. Seed funds will be used to encourage private investment in the area that promotes the
adherence to the established guidelines.
FY 2022 appropriations in this section total $2.7 million with a 5-year total programmed amount of $4.8
million.
Education
The Education section of the CIP is determined by the School Board of Chesapeake Public Schools.
Education capital projects are appropriated by City Council as required by state law, however, spending
from these projects is directed by the Schools.
For FY 2022, the total appropriation to the Education CIP is $17.9 million. CIP 03-180 “Non-Routine
Renewal & Replacement Projects – Schools,” which receives the vast majority of this funding, provides
for maintenance of major building systems and grounds at school facilities including HVAC and other
mechanical systems, roofs, and parking lots/driveways.
The Schools also have three additional projects receiving funding in FY 2022. CIP 29-190 “School Bus –
Replacement” and CIP 30-190 “School Technology - Replacement” will both receive $1 million, which is
utilized to ensure that school buses and the technology used by students, teachers, and administrators
are replaced on a regular basis. These projects are critical as they help ensure that students can safely
be transported to and from school and that modern technological tools are available in the classroom.
CIP 69-230 “School Technology, Security & Equipment Replacements” is receiving $1.3 million in FY 2022
and this funding will be utilized for security vestibules for middle schools and the Chesapeake Center for
Student Success (CCSS).
In the out years, CIP “Modernization/Renovation of Schools” is programmed to receive $103.5 million
over a two-year period (FY 2024 and FY 2025). It should be noted that the specific use of these funds has
yet to be determined by the School Board.
Information Technology
Desired Outcomes
City of Chesapeake 54 FY 2022-2026 Conducting business with the City is easy and convenient – Technology allows customers to do
business with the City in the manner and at the time it is most convenient
Data and transactional security – Customer data and transactions remain private and secure
Operational Success – Systems and devices utilized by departments and customers allow for
optimal performance
The Information Technology section of the CIP includes projects across the spectrum of government.
With an additional $250,000 programmed in FY 2022, CIP 10-240 “Citizen Experience Study – City Digital
Content” funds a study to assess the current experience of customers and city employees while
interacting with the City's digital tools. The study will include a stylebook for the City's digital services,
including cross-platform branding to ensure that customers experience a consistent look and feel when
interacting with one of the City’s many departments or programs. This study will aid the City in the
decision making process when developing or acquiring new digital tools in the future, ensuring a focus
on customer ease of use and satisfaction.
While the ease of doing business with the City is important, the security of the City’s data and customer
information is paramount. CIP 09-230 “Enterprise –Wide Next Generation Identity Access Management”
funds the implementation of a suite of tools and technologies for Identity Access Management (IDAM)
across the enterprise. This project will aid with the management of secure user authentication, user
management, user authorization, and user access rights. These tools will further help the City adhere to
the Center for Internet Security (CIS) Critical Security Controls framework.
Another project focusing on ensuring data security is CIP 09-250 “Data Access Governance Design and
Implementation.” The intent of this project is to improve the City’s cybersecurity program by
implementing a data access governance system that will help the City reduce the risk of exposure of
sensitive information. This project will expand Information Technology’s visibility to what data exists
across the enterprise, its classification under various regulatory requirements, where the data is located,
and who has access to it. This will enhance the City's ability to combat both external and internal
threats.
The single largest increase in investment in the FY 2022 - 2026 CIP is in CIP 06-220 “Tax System
Modernization.” This project is now fully programmed at $24.75 million and funds the modernization of
the City’s current tax system. This project will completely replace and modernize the existing legacy
applications currently running on the mainframe. This funding will support the acquisition of software,
system implementation and integration services, and program support. This is a complex multi-year
project that will be completed in phases to ensure a successful outcome.
The FY 2022 - 2026 CIP includes appropriations of $8.9 million in FY 2022 for Information Technology. In
addition to the projects discussed above, this section includes numerous projects for the upgrade and
replacement of equipment and software to ensure departments have the tools they need to provide
excellent customer service. The total 5-year Information Technology program totals $42.2 million.
Parks, Recreation, and Tourism
Desired Outcomes
Improve physical and mental health – A variety of recreational amenities ensure the opportunity
to exercise strengthening the body and mind
City of Chesapeake 55 FY 2022-2026 Improve air quality, water quality, and the physical environment – Open space provides for a
balanced ecosystem providing habitats for wildlife and critical floodplains to aid in stormwater
management and filtration
Enhance mobility and connectivity – Pedestrians can move from place to place through an
interconnected system of sidewalks and pedestrian paths
Increased Tourism – First time visitors discover Chesapeake as a destination, while others return
year after year
The Parks, Recreation, and Tourism section of the CIP includes projects focused on improving the natural
environment, encouraging tourism, and providing facilities for improving physical and mental well-
being.
With one of the only public water access areas on the Eastern Branch of the Elizabeth River, CIP 15-240
“Blue Heron Landing Park on the Indian River” will expand the City’s recreational amenities by creating a
public green space for residents to connect with the historic Indian River riparian forests. This project,
which is receiving $525,000 over the first two years of the CIP, will provide multiple benefits to both
citizens and wildlife such as improved habitat for marine birds and animals, improved air and water
quality, a looped trail through marshes and maritime forests for observing nature, and access for
kayaking and fishing. This project includes the removal of a broken bulkhead, which will be replaced
with a naturally sloped living shoreline (which will restore the shoreline to include a maritime forest).
Park amenities will include a boardwalk, kayak launch, small picnic shelter, portable restrooms, and
parking areas.
Another outcome of this project is the provision of improved storm protection as well as stormwater
credits. This project aligns with multiple goals of the City's Comprehensive Plan including wetland
protection efforts, identifying and facilitating the provision of future public waterfront access areas, and
providing a variety of recreational amenities to address the needs of a diverse population.
In addition to the development of Blue Heron Landing Park, the CIP also includes funding to renovate
one of the City’s oldest park facilities, Northwest River Park. CIP 11-230 “Northwest River Park
Improvements” allocates $3.4 million over the next three years (in addition to the $2.6 million in
previously appropriated funding) to renovate and rehabilitate park structures and systems. Specifically
the project will address the failing sanitary sewer system, reconstruction of the Marjorie Rein scenic
overlook and bridges, and replacement of the Camp Store/Ranger Station/Restroom, shop offices, and
the activity building with a facility that provides meeting spaces, a laboratory, and multi-purpose room
rental facility (for weddings, parties, etc.). The renovations will focus on making the facility safe and
enjoyable, which will make the park competitive in the market.
While these park development and renovation projects will help to encourage tourism to Chesapeake,
the CIP includes a significant investment in one of the City’s most critical tourism assets, the Chesapeake
Conference Center. The Conference Center, which opened in 1997, has received little investment
toward the upgrade and replacement of the aging facility infrastructure since that time. CIP 12-200
“Conference Center Renovation” provides funding to make numerous improvements at the facility to
include new signage, replacement of the ballroom doors, new flooring and carpet, and replacement of
the HVAC system. Current project plans include expanding the storage facility, remodeling the rotunda
canopy and public space, replacing the exterior doors, and replacing the exterior sidewalk. This work will
be performed over a six-year period and will include phased expansion and refurbishment of the facility.
A project centered on place making is CIP 36-240 “Enhanced Signage & Landscaping at Entrances to the
City.” For FY 2022, this project was transitioned from the Economic Development Section to the Parks,
City of Chesapeake 56 FY 2022-2026Recreation, and Tourism Section of the CIP as the Parks, Recreation, and Tourism Department is
responsible for the City’s landscaping efforts. In conjunction with the City’s branding initiative, this
project is receiving a new allocation of $200,000 annually to ensure that major activity centers and
thoroughfares are aesthetically pleasing and provide enhanced identification of City borders. This
project will replace, enhance or add signage and landscaping at strategic bridges, waterways,
intersections, and at City borders.
The only new project in this section is CIP 04-260 “Renovation of the Mann Drive Maintenance Facility.”
This project funds the renovation and replacement of the maintenance shops, restrooms, storage bins,
warehouse, and office space for the park maintenance and housekeeping staff located at the Mann
Drive complex. It will allow for the proper storage of supplies and equipment which in turn will prolong
the useful life of these items. Proper supplies and equipment are needed to meet environmental
standards and requirements and to ensure the proper maintenance and beautification of City facilities
and grounds.
In addition to these important Parks, Recreation, and Tourism development and maintenance projects,
this section of the CIP includes a number of additional projects for the maintenance and upgrades of
neighborhood parks and community centers throughout the City. Such improvements include
playground equipment, shelters, field fencing, lighting, and building renovations. The Parks, Recreation,
and Tourism section is receiving an appropriation of $7.2 million in FY 2022 with a 5-year total
programmed amount of $28 million.
Public Safety
Desired Outcomes
Lives and property are protected – Public safety response times exceed national standards and
patients and/or victims receive excellent care
Citizens and visitors feel safe anytime, anywhere – Citizens are aware of and utilize prevention
techniques causing crime rates to decline
Order is maintained within the City of Chesapeake – When crimes are committed, those
responsible are found and prosecuted
The Public Safety section of the CIP includes funding for apparatus, equipment, technology, and
buildings for the City’s Police, Fire/EMS, and Sheriff’s departments necessary to maintain public safety
and to respond to emergency incidents.
The CIP includes over $2 million in additional funding (this increase is in addition to what was previously
programmed for this project for FY 2022) necessary to fully fund the replacement of Fire Station #11 at
Dock Landing, CIP 28-190. The new Dock Landing station will be a modern station that can comfortably
expand the number of firefighters assigned each day and accommodate gender separation. This new
facility also provides a significant safety upgrade important to the long-term health of the staff by
including a modern ventilation system in the apparatus bays to ensure that the exhaust from vehicles
and equipment does not spread into the living areas of the building.
In an effort to ensure the City’s firefighting apparatus are replaced on a regular basis, ongoing funding is
included in the FY 2022 - 2026 in CIP 39-200 “Fire – Vehicle Replacement.” This funding will ensure that
ladder trucks, telesquirts, and pumpers are replaced on a regular basis. Replacing aging vehicles will also
help to ensure the apparatus meet National Fire Protection Association (NFPA) standards. In addition to
the vehicles, hoses and other equipment on each apparatus are also replaced to ensure they do not
City of Chesapeake 57 FY 2022-2026exceed the service life expectancy. The availability of these assets contributes to the protection of lives
and property from fire incidents and promotes the general safety of citizens and visitors.
Current technology is also important to the welfare and safety of City staff that work in the public safety
field. In the Sheriff’s Office, the ability to communicate at the push of a button is imperative to keeping
all deputies safe while working in a correctional facility environment. Over 200 of the radios used by
deputies are reaching the end of useful service life. CIP Project 43-250 “Sheriff – Radio Replacement”
will replace 430 radios and this new equipment will enable deputies to communicate situations and
reach out for help when necessary.
In addition to replacing portable radios utilized by the Sheriff’s Office, CIP 29-250 “Fire/Police – Base
Station Radio Replacement” provides $250,000 annually from FY 2023 to FY 2025 to replace 65 radio
base stations in Fire Stations, Police Precincts, and the Public Safety headquarters/administrative offices.
The replacement of these base stations is necessary to provide reliable communications for first
responders during routine and emergency incidents. These base stations also contain higher power and
elevated antenna systems which provide reliable communication between first responders and the
Emergency Operations Center during extreme weather events. The current base stations have been in
service for over 12 years and the manufacturer will no longer provide support for these devices after
July 1, 2022.
The Public Safety section of the CIP also includes funding for the replacement of other major equipment
utilized by the Police Department, Fire Department, and Sheriff’s Office. Each of these projects is
essential to ensuring that the City of Chesapeake maintains its status as one of the safest City’s of its size
in the country. Total appropriations for this section for FY 2022 are $10.5 million with a 5-year program
equaling $28.7 million.
Public Utilities
Desired Outcomes
Clean Drinking Water is available - The City has an adequate supply of clean water now and in
the future
Elimination of Environmental contamination – Sanitary sewer overflows are reduced or
eliminated
Improved ISO ratings – Water pressure is sufficient to support firefighting operations when
needed
Loss of water resources is eliminated – The system is maintained sufficient to eliminate leaks
The Public Utilities section of the CIP includes capital projects related to the maintenance, rehabilitation,
and expansion of the City’s water and sanitary sewer systems. Two technology projects designed to
improve system efficiency are CIP 53-120 “Automated Meter Reading Equipment and Software” and CIP
23-240 “Supervisory Control and Data Acquisition (SCADA) Upgrade.” Both of these projects fund the
upgrade from current technologies in Public Utilities to more modern and efficient solutions. The
completion of these projects will result in improved pump station performance monitoring, billing
accuracy, and leak detection. These efficiency gains will reduce the need for manual processes and make
the cost of operating the current systems more affordable.
In addition, the Public Utilities section includes three new projects. CIP 03-260 “Sewer: Gracie Road
Force Main Relocation,” CIP 03-260 “Water Main: Sign Pine Road to South Battlefield 16-inch,” and CIP
01-260 “Water: Currie Avenue Steel Street Water Main Loop” are rehabilitation projects that address
inefficiencies in the current water and sanitary sewer systems. Upon completion, these new projects will
City of Chesapeake 58 FY 2022-2026ensure that impacted areas of the City have an adequate supply of clean and safe drinking water, an
operational and structurally sound sanitary sewer system, and improved ISO ratings.
Project 03-260 “Sewer: Gracie Road Force Main Relocation” provides for the relocation of a sanitary
sewer force main that runs along Gracie Road. The current sewer force main suffered a significant
failure in 2018 that resulted in a sanitary sewer overflow. However, due to the force main’s location,
City staff are unable to perform repairs and maintenance on this force main. Once this sewer force main
is relocated, City work crews will be able to safely service this section of the sanitary sewer system and
ensure proper maintenance of the sanitary sewer system in this area.
The second new project, CIP 02-260 “Water Main: Sign Pine Road to South Battlefield 16-inch,” provides
for the installation of a new water main to loop developments under the Chesapeake Expressway.
Development in southern Chesapeake has strained the existing water distribution system in that region.
This project will update the existing water distribution system to ensure this area of the City has an
adequate supply of clean drinking water now and in the future.
CIP 01-260 “Water: Currie Avenue Steel Street Water Main Loop” provides for the installation of a
second water main loop on Currie Avenue at Steel Street. Several breaks in the existing water line have
occurred due to deterioration of the line because of soil conditions. Installation of the new water main
loop will allow for adequate fire protection and proper circulation of water in the area.
In addition to these projects, the Public Utilities section of the CIP includes a number of projects to
ensure the proper maintenance and rehabilitation of the water distribution and sanitary sewer systems.
These projects will ensure clean drinking water in areas of the City within the Public Utilities Franchise
area. As development activities and major employers move to the City, having well-maintained systems
will ensure that the capacity exists to add these new customers.
FY 2022 appropriations in the Public Utilities section total $20.8 million, while total programmed funding
for the 5-year CIP totals $92.1 million.
Stormwater
Desired Outcomes
Property and infrastructure is protected from stormwater – When storms occur the system
efficiently drains water
Improved water quality of lakes, streams, and rivers – Best Management Practices (BMP) filter
pollutants from stormwater prior to its flow into waterways
The Stormwater section of the CIP includes major investments necessary to improve drainage, reduce
flooding, and improve water quality throughout the City. Many of the projects in this section receiving
additional funding in the 5-year program are maintenance projects intended to improve the
functionality of the existing system throughout the City.
One such project is CIP 43-170 “Citywide System Rehab.” This project will provide for the replacement
and upgrade of aging pipe systems and structures within selected neighborhoods. The presence of
numerous cave-ins and sinkholes in these areas indicates there is a need for system rehabilitation.
CIP 08-150 “Neighborhood Drainage Improvements – Phase II” is also receiving additional funding in FY
2022. This project will provide for citywide drainage improvements including acquisition of easements,
replacement of pipes, regrading ditches, and other improvements designed to address existing
neighborhood drainage deficiencies. In several existing neighborhoods major improvements are
City of Chesapeake 59 FY 2022-2026necessary to increase drainage capacity and upgrade deficient drainage systems reducing flooding and
its impacts.
Another project focused on the maintenance of the City’s existing stormwater infrastructure is CIP 73-
120 “BMP Restoration Citywide.” BMPs are devices used to reduce pollution in stormwater runoff,
thereby protecting area waterways. These practices are often permanent facilities designed to handle
stormwater runoff in a specific area. BMPs reduce the flow of stormwater allowing for the filtration of
pollutants before the stormwater enters streams, rivers, lakes, and bays. BMPs must be maintained to
ensure they perform properly.
The project will improve system capacity and water quality by providing for the removal of significant
amounts of accumulated sediment and silt. This project will impact various locations citywide, including
the following stormwater facilities: Bahama Way BMP, Southern Pines BMP, Fentress Road BMP, and
Major Hillard Library BMP. Over the years significant amounts of silt and sediment have accumulated
within City retention ponds limiting their capacity. This project is needed to maintain the hydraulic
capacity and water quality functionality by limiting runoff to area creeks and streams
A new project added to the stormwater section and receiving $1.6 million in FY 2022 is CIP 05-260
“Broadlawn Apartments Outfall Improvements.” This project will address the failing public outfall
system at the Broadlawn Apartments. The scope of this project includes the replacement and resizing of
approximately 1,500 linear feet of storm pipe and the installation of additional storm pipe under the
railroad track. The existing system has deteriorated beyond repair and requires reconstruction.
Improvements will reduce the current ongoing maintenance demands, as the existing system is
inadequate causing frequent flooding and citizen complaints. In addition to the private properties in this
area, there are several City properties, including a public school that will benefit from the outcomes
associated with this project.
For FY 2022, appropriations to the stormwater section total $8.7 million. The total 5-year plan totals just
over $16 million.
Transportation
Desired Outcomes
Improved connectivity and mobility – Congestion is reduced and the transportation network
allows for the efficient mobility of people and goods
Roadways are safe and well-maintained - Roadways are safe for the traveling public and vehicle
crashes are reduced
The Transportation section of the CIP includes projects for road widening, sidewalk installation, turn
lane installation, and major repairs and renovations of bridges and intersections throughout the City.
While most of the funding in this section is focused on improvements designed to increase the safety
and capacity of City roadways for vehicular traffic, the availability of an interconnected system of
sidewalks and pedestrian pathways can improve the capacity of the system by removing the need for
vehicles to move from one location to another within the City. The Transportation section of the CIP
includes two projects that will improve pedestrian access throughout the City.
The first project, CIP 58-250 “Citywide Trails and Open Space Connectivity Plan,” provides funding for a
coordinated plan for the development of trails and pathways. Chesapeake needs to develop a formal
City of Chesapeake 60 FY 2022-2026stand-alone plan focused on open space and trail connectivity to include blue and green infrastructure. It will also identify strategies for protecting, conserving, and enhancing these vital assets. Currently, the City relies on the Comprehensive Plan and its 2050 Master Trails component to inform planning efforts related to bicycle and pedestrian improvements, development of new trails, and blue/green connections. The Trails and Open Space Connectivity Plan expands on this portion of the Comprehensive Plan and generates a separate planning document outlining goals and objectives the City can implement to support a robust and integrated active transportation network. This plan will serve as the framework for executing identified infrastructure improvements and instituting policy recommendations in the City to create a dynamic multimodal open space and trail network for all users. In order to implement some of the recommendations of this plan, the CIP includes an increase in the annual allocation to CIP 26-220 “Citywide Sidewalk Installation” from $300,000 to $800,000. The City aims to add linear feet of sidewalks to the existing system and this investment will have the added benefit of serving as a recreational asset for walkers, joggers, and cyclists. While multiple modes are important for an efficient transportation network, safety is also a critical component of a successful program. The CIP includes two projects receiving new funding, and both are centered on improving safety. The first, CIP 12-260 “Residential Traffic Calming Program” is a direct result of concerns expressed by citizens about the safety of their neighborhoods. This project will provide funding to implement a traffic calming program to include the acquisition of speed limit radar detection trailers, and physical measures to aid in slowing vehicle speeds or reducing cut-through vehicles within neighborhoods. The second project, CIP 41-210 “Rural Roads Safety Improvement Program” is receiving an additional $1 million over the first two years of the CIP to address existing deficiencies along the City's rural roads. Improvements to be made under the scope of this project include the realignment of curves, relocation of ditches, pavement widening, and various other measures to improve safety. The City has over 100 miles of rural roads that do not meet current design standards and this funding provides a means to systematically address safety issues that have previously been identified. This section also has a number of projects designed to improve the capacity of the City’s roadway system. The most impactful of these projects is CIP 08-180 “Deep Creek AIW Bridge Replacement.” The Deep Creek AIW Bridge is owned and operated by the U.S. Army Corps of Engineers. The two-lane bridge crosses the Atlantic Intracoastal Waterway and carries approximately 25,000 vehicles per day. The bridge was constructed in 1934 and is functionally obsolete and weight-restricted, requiring emergency vehicles to utilize alternate routes to serve the areas on either side of the bridge. An additional $850,000 in funding allocated to this project in FY 2022 is to procure a construction engineering consultant that will be responsible for ensuring that all VDOT and FHWA material and testing requirements are followed during the construction phase. This effort is required to ensure the $20 million in previously appropriated VDOT funding is fully reimbursable. In addition to these highlighted projects, this section also has several new projects for the maintenance and rehabilitation of roads, bridges, signalization, and the replacement of City’s traffic management system. All of these projects will aid in making the City’s transportation infrastructure safer and more efficient. Due to all of these investments, the transportation section of the CIP is receiving the largest allocation in the Capital Plan for FY 2022 at $23.2 million. Many of the projects within this section take significant City of Chesapeake 61 FY 2022-2026
time, funding, and logistics. For this reason, many of these projects have phased funding. The total for the 5-year plan for this section totals in excess of $85.5 million. Unfunded Priorities While the FY 2022 - 2026 CIP includes a number of important projects, inadequate funding exists to program all of City Council’s capital priorities. At their retreat in November of 2020, Council endorsed a number of specific projects and investment areas as priorities. Two of the City’s highest ranked capital projects are for the design and construction of a new public safety training facility and the development of the Chesapeake Connects fiber optic broadband ring. The FY 2022 –2026 CIP does not include new funding for either of these projects and the reason for this is two-fold, timing and funding capacity. As it relates to the public safety training facility, there is a study currently underway to identify requirements of such a facility to include several potential preliminary design concepts. Public Works anticipates that this study will be completed around the end of the first quarter of FY 2022 and at that time, a more accurate cost estimate for the facility will be known. The previous estimate (which is shown on the detail sheet for CIP 16-230) of $17 million is now believed to be inadequate. Without a more refined estimate, inclusion of this project within the CIP may be premature. In addition to the lack of an accurate project estimate, the City Lockbox lacks the capacity to fund the debt service on the public safety training facility and the additional funding required to complete the Chesapeake Connects broadband ring. While allocations to the Lockbox have increased over time (discussed in detail later in this section), these increases are not sufficient to fund two projects of this magnitude and previously approved investments such as the replacement of the Public Works and Public Utilities operations facility (CIP 01-150). $9.7 in general obligation bonds have previously been appropriated to the replacement of this facility and the project is receiving an additional $14.5 million (a combination of bonds and cash) in funding in FY 2022, all of which is being financed using the City Lockbox. Other priorities that are not funded in the CIP include investments for site readiness for economic development opportunities and the strategic acquisition of land. Land acquisition is important for the development of future community facilities and amenities, or to facilitate private investment through business expansion or relocation. One priority area of investment that was addressed in the out years of the CIP is deferred maintenance for City roads and facilities. While the CIP does not include the nearly $11 million per year requested for roadway maintenance by Public Works, a total of $2.5 million was added over a two-year span (FY 2025 and FY 2026) for a new project for the resurfacing of arterial and collector roads (CIP 08-260). The allocation to the High Priority Facility Renewal and Replacement project was increased to $4 million in FY 2026 as requested by Public Works. A comprehensive list of all new projects and existing projects for which additional resources were requested but not funded in the City Manager’s Proposed CIP, is included in the appendix of this document. While the ability to fully program many of these important projects is not financially sustainable under current revenue and policy constraints, the City Manager intends to bring City Council two specific policy proposals during the budget workshops in April that would allow the City to make additional investments in priority projects as directed by City Council. City of Chesapeake 62 FY 2022-2026
Sources of Funding for the CIP The following table shows the various sources used to fund the City’s CIP. The first nine sources listed are cash funding, while the next four sources listed, general obligation bonds and revenue bonds are debt financing of projects. The final five sources shown in the table are typically associated with specific projects. While the City strives to utilize cash sources for most projects in the CIP, debt financing is often necessary to fund major projects such as new or replacement facilities (including schools), roadway construction, and utility construction or replacement. Funding Source FY 2022 FY 2023-2026 Total 5-Year Program City Lockbox 10,527,000 35,630,950 46,157,950 School Lockbox 7,000,000 39,000,000 46,000,000 Cash - TIF Districts 4,956,943 3,043,057 8,000,000 Cash - Stormwater 1,500,925 7,350,000 8,850,925 Cash - Utilities 10,387,230 57,382,300 67,769,530 Cash - Other City Funds 610,000 1,830,000 2,440,000 Fund Balance - General Fund 17,090,002 34,861,154 51,951,156 Fund Balance - Capital Projects Fund 1,000,000 1,500,000 2,500,000 Fund Balance - Utilities 1,402,770 - 1,402,770 Fund Balance - Stormwater 2,649,075 - 2,649,075 Fund Balance - IT 1,000,000 1,000,000 2,000,000 Fund Balance - CTS 4,170,000 8,830,000- 13,000,000 Fund Balance - Other Funds 1,088,000 1,010,000 2,098,000 G.O. Bonds - General Government 27,164,137 31,280,000 58,444,137 G.O. Bonds - VPSA 6,000,000 116,500,000 122,500,000 G.O. Bonds - South Norfolk TIF - 423,360 423,360 G.O. Bonds - Short Term Financing 1,170,000 12,762,676 13,932,676 Revenue Bonds Utility Fund 8,982,000 42,700,000 51,682,000 Fund Balance – SW Capital Projects 2,420,000 - 2,420,000 Proffers 540,000 1,500,000 2,040,000 Developer Pro Rata 485,000 - 485,000 Grant - 647,000 647,000 State 11,722,000 27,144,000 38,866,000 Federal - 10,170,000 10,170,000 Total 121,865,082 434,564,497 556,429,579 The City has a policy that when bonds are issued, the pay-back period cannot exceed the useful life of the project being financed. In cases where the useful life of the asset is limited, the replacement of major public safety equipment for example, cash sources are utilized to finance these projects. While the use of cash sources has been the preferred method for financing capital projects, the issuance of bonds for certain projects can provide for greater equity in terms of the payer and the beneficiary of a project. When using cash sources to finance a project, it is typically necessary to accumulate funding over a number of years before sufficient resources are available to begin project execution. Over the number of years that funds are accumulating, inflationary forces may push the cost of the project higher requiring even more funding. When the project finally comes to fruition and the benefits of the project are realized by members of the community, some of the taxpayers that contributed to the accumulation of funding over a number of years may no longer reside in Chesapeake. While they contributed to the cost of the project, they will receive no benefit from it. City of Chesapeake 63 FY 2022-2026
By utilizing bonds, a project is able to be constructed before all of the resources required to fully fund
the project are accumulated. Instead the project is financed over a number of years and taxpayers who
receive the benefit of the improvement are paying the debt service associated with the project. This
concept is known as “generational equity.”
The City has established several financial mechanisms to accumulate cash funding and to fund debt
service payments when utilizing bonds to finance a project. The next two sections provide additional
detail regarding the City and School Lockboxes and the City’s two TIF districts.
City and School Lockboxes
Two of the most significant City Council policies affecting the CIP are the City and School Lockboxes. The
Lockboxes were established to provide a source of cash funding to the CIP as well as a funding source for
debt service payments as a result of the issuance of bonds for capital projects. The School Lockbox
dedication was adopted by City Council as part of the FY 2004 budget, and an initial annual allocation of
$1.6 million was transferred from the General Fund to the Lockbox that fiscal year. In FY 2005, the City
Lockbox received its first allocation of $1.5 million. Both the City and School Lockboxes continued to
receive annual allocations until the 2008 recession forced a five-year period of limited growth.
Beginning in FY 2016, the City began retiring several large debt issuances from the mid 1990’s that pre-
dated the establishment of the City and School Lockboxes. At that time, City Council approved
redirecting $15.4 million in savings from lower debt service requirements and reinvesting this capacity in
the CIP through the Lockboxes. Each year the amount of Pre-Lockbock debt that is retired is split
between the City and School Lockboxes. These amounts are represented by the allocations shown on
the table on the following page beginning in FY 2016 (in addition to the $7.7 million received as part of
this split, the City Lockbox also received a new $1 million annual allocation in FY 2016). The redirection
of these savings will continue through FY 2024 when the last of these major Pre-Lockbock issuances is
retired. At that time, the cumulative annual allocation to the City and School Lockboxes due to these
debt retirements will be $15.9 million based on current policy.
In addition to the flat allocation amounts shown in the table, an annual dedication of 3.5% of the hotel
tax was added to the School Lockbox in FY 2005, and in FY 2007, both the City and School Lockboxes
received an annual dedication of 1¢ of the real estate tax. In FY 2022, the hotel tax is estimated to
generate $2.1 million to the School Lockbox, while both the City and School Lockboxes will receive
approximately $2.8 million from the real estate tax dedication. In an effort to keep up with inflation, an
annual increase of 1% of the total allocation (from all sources) to each Lockbox was added in FY 2020.
This inflation adjustment is calculated on the total prior year’s allocation. Due to the difference in the
contribution to each Lockbox, the inflationary adjustment for the School Lockbox outpaces this
adjustment on the City side.
Total Lockbox Contributions for FY 2022
School Lockbox City Lockbox Total
Flat Allocations $25,042,500 $22,086,500 $47,129,000
Hotel Tax $2,118,325 - $2,118,325
Real Estate Tax $2,777,475 $2,777,475 $5,554,950
Inflation Adjustment $731,965 $611,605 $1,343,570
Revenue Sharing True-Up (FY 2020) $1,000,000 - $1,000,000
Total $31,670,265 $25,475,575 $57,145,840
City of Chesapeake 64 FY 2022-2026Flat Amount Allocations to Lockboxes*
School Lockbox City Lockbox
Fiscal Allocation Cumulative Annual Allocation Cumulative Annual
Year Amount Allocations Amount Allocations
2004 $1,640,000 $1,640,000 - -
2005 $3,262,600 $4,902,600 $1,500,000 $1,500,000
2006 $1,653,400 $6,556,000 $1,100,000 $2,600,000
2007 $1,000,000 $7,556,000 $1,000,000 $3,600,000
2008 $1,000,000 $8,556,000 $1,000,000 $4,600,000
2009 $500,000 $9,056,000 $500,000 $5,100,000
2010 - $9,056,000 - $5,100,000
2011 - $9,056,000 - $5,100,000
2012 $500,000 $9,556,000 $500,000 $5,600,000
2013 - $9,556,000 - $5,600,000
2014 - $9,556,000 - $5,600,000
2015 $750,000 $10,306,000 $750,000 $6,350,000
2016 $7,700,000 $18,006,000 $8,700,000 $15,050,000
2017 $2,795,000 $20,801,000 $2,795,000 $17,845,000
2018 $291,000 $21,092,000 $291,000 $18,136,000
2019 $2,275,000 $23,367,000 $2,275,000 $20,411,000
2020 $987,500 $24,354,500 $987,500 $21,398,500
2021 $362,000 $24,716,500 $362,000 $21,760,500
2022 $326,000 $25,042,500 $326,000 $22,086,500
*This table does not include the dedicated 1¢ of the real estate tax to both the City and School Lockboxes or the 3.5% of the
hotel tax dedicated to the School Lockbox. The numbers in the table also exclude the $1 million annual allocation from the
South Norfolk TIF to the School Lockbox from FY 2012 to FY 2021 for renovations to Oscar Smith Middle School. This table is
also not meant to capture all deposits that have been made to the Lockboxes. Since the inception of the Lockboxes, proffers
and school reversion funds have been deposited and these amounts are not shown.
As the table on the previous page illustrates, the School Lockbox will receive $31.7 million in FY 2022,
while the City Lockbox will receive $25.5 million. Since the inception of the School Lockbox in FY 2004
through FY 2021, the school Lockbox has received $61.7 million more in flat amount allocations than the
City Lockbox and an additional $35 million more in dedicated revenue from the hotel tax. A financial
summary of both Lockboxes is provided in the appendix section of the document.
Tax Increment Financing (TIF) Districts
Another strategic source of funding for the CIP are the City’s two TIF districts, Greenbrier and South
Norfolk. A TIF district is a geographically delineated area of the City that generates revenue from the
growth in real estate assessments. When a TIF district is established, the baseline real estate
assessments within the district are frozen. Public investments in the district are constructed, with the
goal of encouraging private investment, which ultimately raises real estate assessments in the district.
The real estate tax revenue generated from the growth in assessments is dedicated to a fund that is
used to pay the debt service on the initial public improvements. A table showing a basic example of
how a TIF fund generates funding is shown below.
Depending on the success of the district, additional improvements may be financed as revenue growth
to the fund allows. City Council may also choose to declare revenue generated in the district beyond the
City of Chesapeake 65 FY 2022-2026requirements in a given fiscal year as surplus and utilize the funding in a manner consistent with other
general tax collections.
Baseline Real Estate Current Real Estate
Assessments Assessments Increment
Example TIF District $70,000,000 $95,000,000 $25,000,000
Citywide Tax Rate $1.04/$100 of Value $1.04/$100 of Value
Real Estate Tax to General Fund $728,000
Real Estate Tax to TIF Fund $260,000
It is important to note that taxpayers in TIF districts pay the same real estate tax rate as every other
taxpayer in the City. Revenue generated from the original baseline assessments is not dedicated to the
TIF Fund and instead goes to the General Fund and is available to support citywide operations and
services.
In FY 2022, funding from both TIF districts is being utilized to service the debt on previous improvements
in each district. The South Norfolk TIF is also providing $8 million in cash funding over the 5-year CIP to
fund a number of projects within the district. The 5-year plan does not include any cash funding for
projects in the Greenbrier TIF, but does continue to make debt service payments for previous
improvements. A financial summary of the City’s two TIF districts is provided in the appendix section of
the document.
State Funding
One of the more significant external revenue sources that the City receives in the CIP is from the
Commonwealth of Virginia for transportation projects. In the FY 2022 - 2026 CIP, there are a number of
adjustments being made to transportation projects due to a change in the timing of when state revenue
is anticipated to be available. Below is a summary table for each of the impacted projects showing the
programmed funding as adopted in the FY 2021 - 2025 CIP and the updated programmed funding as
proposed in the FY 2022 - 2026 CIP.
CIP 30-240 Johnstown Road Ditch and Shoulder Improvements
Programmed Funding as of Adopted FY 2021-2025 CIP
Year 1 Year 2 Year 3 Year 4 Year 5 Project
ATDs FY 2022 FY 2023 FY 2024 FY 2025 FY 2026 Future Years Total
Local 5,000,000 5,000,000 2,500,000 - - - - 12,500,000
State - - 10,000,000 - - - - 10,000,000
Totals 5,000,000 5,000,000 12,500,000 - - - 22,500,000
Programmed Funding Proposed for FY 2022-2026 CIP (Revised based on Availability of State Funding)
Local 5,000,000 - - - 3,403,000 4,097,000 - 12,500,000
State - - - - 4,000,000 4,097,000 1,903,000 10,000,000
Totals 5,000,000 - - - 7,403,000 8,194,000 1,903,000 22,500,000
CIP 35-230 Elbow Road Widening - Phase II
Programmed Funding as of Adopted FY 2021-2025 CIP
Year 1 Year 2 Year 3 Year 4 Year 5 Project
ATDs FY 2022 FY 2023 FY 2024 FY 2025 FY 2026 Future Years Total
Local 10,200,000 - - - - - - 10,200,000
State 10,000,000 - - - - - - 10,000,000
Totals 20,200,000 - - - - - 20,200,000
Programmed Funding Proposed for FY 2022-2026 CIP (Revised based on Availability of State Funding)
Local 10,200,000 - - - - - - 10,200,000
State 465,000 2,000,000 4,035,000 3,500,000 - - - 10,000,000
Totals 10,665,000 2,000,000 4,035,000 3,500,000 - - - 20,200,000
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