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Use of GIS Technologies to Facilitate the
Transportation Project Programming Process
The William and Barbara Leonard UTC CSUSB
Prime Award No. 65A0244
Sub- Award No. GT 70769
Awarding Agency: California Department of Transportation
Xuong Jia, PhD, P. E.
Vicki Yiyu Yang
Department of Civil Engineering
California State Polytechnic University, Pomona
Pomona, CA 91768
May 2008
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This project was funded in its entirety under contract to the California Department of
Transportation.
The contents of this report reflect the views of the authors, who are responsible for the
facts and the accuracy of the information presented herein. This document is
disseminated under the sponsorship of the U. S. Department of Transportation, The
William and Barbara Leonard University Transportation Center ( UTC), California State
University San Bernardino, and California Department of Transportation in the interest of
information exchange. The U. S. Government and California Department of
Transportation assume no liability for the contents or use thereof. The contents do not
necessarily reflect the official views or policies of the State of California or the
Department of Transportation. This report does not constitute a standard, specification, or
regulation.
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EXECUTIVE SUMMARY
Transportation project programming in a transportation agency is a process of matching
potential projects with available funds to accomplish the agency’s mission and goals of a
given period of time. Result of this process is normally a transportation improvement
program ( TIP) or a Capital Improvement Program ( CIP) that sets up the financial plan as
well as the scope and schedule of transportation improvement projects to be implemented
by a transportation agency.
Many transportation agencies ( including Southern California Association of
Governments ( SCAG) and the Orange County Transportation Authority ( OCTA))
recently have employed Geographical Information System ( GIS) technologies to
facilitate their project programming process. The geographical representation of
transportation projects greatly helps decision- makers prioritize transportation projects
visually. It also helps notify the public of transportation improvement projects in an easy-to-
read, graphic format on the Web.
This project has conducted an assessment of cities in the Inland Empire region on their
transportation project programming process and the use of GIS technologies for the
programming process. Based on the assessment, the project has provided
recommendations and methodologies that could be used to incorporate GIS and project
programming tools in the development of transportation improvement programs. Also the
project has developed a GIS- based conceptual framework and a work plan whose purpose
is to implement the programming methodologies for the cities within the Inland Empire
region.
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TABLE OF CONTENTS
EXECUTIVE SUMMARY .............................................................................................. 3
TABLE OF CONTENTS ................................................................................................. 4
LIST OF FIGURES .......................................................................................................... 5
LIST OF TABLES ............................................................................................................ 6
1. INTRODUCTION................................................................................................. 7
2. GENERAL PLAN AND CIP DEVELOPMENT PROCESS.......................... 10
3. GIS USE IN GENERAL PLAN AND CIP DEVELOPMENT PROCESS ... 24
3.1 GIS Use in Inland Empire Cities ................................................................... 24
3.2 GIS Use for General Plan and CIP Development ........................................ 25
4. CASE STUDY: CITY OF ONTARIO.............................................................. 31
5. GIS- BASED CIP DEVELOPMENT FRAMEWORK.................................... 34
6. PROPOSED FUTURE WORK PLAN ............................................................. 39
7. CONCLUSIONS ................................................................................................. 40
8. REFERENCES.................................................................................................... 42
9. APPENDICES..................................................................................................... 48
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LIST OF FIGURES
Figure 1 Boundary of the Inland Empire Region.......................................................... 10
Figure 2 General Plan Development Process ................................................................ 14
Figure 3 General Plan Update Process of the City of Ontario ...................................... 16
Figure 4 GIS Use for CIP in the City of Moreno Valley .............................................. 26
Figure 5 GIS Use for CIP in the City of La Quinta....................................................... 27
Figure 6 GIS Use for CIP in the City of Palm Desert ................................................... 28
Figure 7 CIP Detail Sheet of the City of Colton ........................................................... 29
Figure 8 CIP Detail Sheet in the City of Fontana.......................................................... 30
Figure 9 GIS- Based CIP Conceptual Framework ......................................................... 35
Figure 10 Web- Based CIP Map in the City of Davis ...................................................... 37
Figure 11 Capital Project Management System in the City of San Jose ......................... 38
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LIST OF TABLES
Table 1 Incorporated Cities in Riverside County ............................................................. 11
Table 2 Incorporated Cities in San Bernardino County.................................................... 12
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1. INTRODUCTION
Transportation project programming in a transportation agency is a process of matching
potential projects with available funds to accomplish the agency’s mission and the goals
of a given period of time. Result of this process is normally a Transportation
Improvement Program ( TIP) or a Capital Improvement Program ( CIP) that sets up the
financial plan as well as the scope and schedule of transportation projects to be
implemented by a transportation agency.
Projects listed in a TIP may include improvements of highways, upgrades of transit, rail
and bus facilities, provisions of carpool lanes, synchronization of traffic signals, and
improvements of intersections, freeway ramps and other related facilities. Projects
included in a CIP are all the projects to be implemented within a city. These projects may
include activities such as road and sidewalk improvements, tree projects, park/ playground
equipment upgrade, building maintenance, water and sewer maintenance and
improvements, traffic signal upgrade, and park maintenance.
Many regional transportation agencies ( including the Southern California Association of
Governments ( SCAG), Orange County Transportation Authority ( OCTA), and Chicago
Area Transportation Study ( CATS)) recently have employed GIS technologies to help the
agencies 1) determine which projects should receive funding and which projects should
be postponed or completely removed from consideration, 2) set priorities for project
implementation, and 3) display projects graphically on transportation networks and
inform them to the public. The geographical representation of potential transportation
projects, which shows where the projects are, provides visual aids in programming
transportation projects. Also, the presentation helps the public and decision- makers know
the critical tasks ( TIP or CIP projects) to be undertaken by transportation agencies.
Transportation agencies or cities in the Inland Empire region ( or in the San Bernardino
and Riverside counties) have used GIS technologies to collect, store, and manage
location- based information for land use planning, economic development, emergency
management, transportation system improvement, pavement preservation, environmental
analysis, etc. Example GIS applications include:
 Hardcopy or Internet- based GIS maps that represent city streets, parcels, and
sanitary and storm utilities,
 Interactive GIS tools/ services to allow the public to download GIS maps in PDF
format through Internet,
 GIS- based Online permit system that allows citizens and developers to obtain a
variety of information regarding proposed developments/ redevelopments for
properties within cities,
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 GIS displays that help people view land use and zoning maps and maps of
neighborhood boundaries, historic resources, redevelopment projects, parks, trails,
parking facilities, and traffic flows.
However, the use of GIS technologies to facilitate the general plan as well as the
transportation project or the CIP development process within the Inland Empire cities is
not clear.
The objectives of this research project are to have an assessment on the general plan and
CIP development processes ( including the level of GIS use in CIP) that have been used
by the cities in the Inland Empire region. Based on the assessment, the project provides
recommendations and methodologies for incorporating GIS and project programming
tools in the development of transportation improvement programs. Also the project
develops a GIS- based CIP conceptual framework and outlines a future work plan to
promote the use of GIS in the CIP development.
In order to archive the above objectives, the project team has conducted the following
tasks:
Task 1 Assessment of General Plan and CIP Development Process
All the available general plans and CIP documents that can be found in the cities of the
Inland Empire region have been reviewed in this task. Also, the general plan and CIP
development processes have been assessed. The levels of GIS use in facilitating the
general plan and CIP development process have been summarized. The assessment is
conducted through an extensive review of materials published on the web sites of the
Inland Empire cities.
Task 2 Selection of a City for Case Study
The Cities of Ontario has extensive GIS applications for project development and
management. Therefore it is selected in this research to further evaluate their general
plan and CIP development process and the level of GIS use in CIP.
Task 3 CIP Development Process Investigation
The general plan and CIP development processes of the City of Ontario are further
assessed through interviews with the City’s engineers and planners. A summary of the
general plan and CIP development processes and the GIS use in CIP for the City is
provided.
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Task 4 GIS- based CIP Conceptual Framework and Future Work Plan
A GIS- based CIP conceptual framework has been developed for project development and
prioritization in this task. This framework incorporates public involvement, city’s inputs
for CIP, as well as GIS technologies in the project development and programming
process. A future work plan has also been outlined to implement this framework.
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2. GENERAL PLAN AND CIP DEVELOPMENT PROCESS
Inland Empire is a region in Southern California that refers to incorporated cities and
unincorporated communities in Riverside and San Bernardino Counties. Figure 1 shows
the location of Inland Empire in relation to Greater Los Angeles area, Orange County,
and San Diego in the Southern California. Tables 1 and 2 list the incorporated cities
within the Inland Empire area.
Figure 1 Boundary of the Inland Empire Region
Source: http:// www. ieep. com/ acrobat/ map. pdf
Since the 1950s, Inland Empire has developed from a rural to a suburban environment.
Expanding from existing cities such as Ontario, Riverside and San Bernardino, the Inland
Empire region is now composed of numerous suburban cities with affordable houses.
Because homes are less expensive than ones in Orange and Los Angeles counties, Inland
Empire has experienced significant growth in population, strong demand for housing, and
solid needs to convert agriculture, vacant land for use for more intensive purposes ( such
as single- family houses, shopping centers, industrial warehouses, etc). This continuous
development has become seemingly challenges to the development of general plans and
capital improvement programs for planned and controlled suburban sprawl.
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Table 1 Incorporated Cities in Riverside County
City Population1 City Size
( Square Miles) 2
Banning 23,562 23.1
Beaumont 11.384 27.2
Blythe 12,155 25
Calimesa 7,139 15.6
Canyon Lake 9,952 4.7
Cathedral City 42,647 19.5
Coachella 22,724 20.8
Corona 124,966 35.2
Desert Hot Springs 16,582 23.3
Hemet 58,812 25.6
Indian Wells 3,816 13.4
Indio 49,116 26.7
Lake Elsinore 47,634 26.7
La Quinta 41,415 32.2
Moreno Valley 186,000 50
Murrieta 97,257 28.4
Norco 24,157 14.1
Palm Desert 41,155 24.4
Palm Springs 45,731 95.1
Perris 36,189 31.4
Rancho Mirage 13,249 24.3
Riverside 291,398 78.4
San Jacinto 23,779 25.3
Temecula 97,935 26.3
1 Population is obtained from 2000 Census
2 City size is obtained from city’s web site
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Table 2 Incorporated Cities in San Bernardino County
City Population City Size
( Square Miles)
Adelanto 18,130 53.54
Apple Valley 67,507 73.62
Barstow 21,119 33.59
Big Bear Lake 5,438 6.5
Chino 69,732 21.1
Chino Hills 80,897 44.9
Colton 47,662 15.7
Fontana 181,640 41.5
Grand Terrace 11,626 3.5
Hesperia 62,582 67.4
Highland 44,605 13.8
Loma Linda 18, 681 7.3
Montclair 33,049 5.10
Needles 4,830 30.2
Ontario 172,701 49.9
Rancho Cucamonga 144,958 37.46
Redlands 63,591 3 7 . 4 6
Rialto 93,284 21.88
San Bernardino 205,010 78.5
Twentynine Palms 14,764 54.8
Upland 70,493 15.1
Victorville 102,538 73.3
Yucaipa 41,207 27.8
Yucca Valley 16,865 40
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The ongoing land development in the Inland Empire area has also resulted in long-commute
travels for high- paid work and businesses in Orange and Los Angeles Counties.
Such long- commute travels have created lots of problems including traffic congestion
and air quality degradation. The solutions to these problems are not simple. Coordinated
and well organized efforts are needed to help all the cities and communities to find
feasible solutions to address these problems in their general plans and capital
improvement programs.
General plan is the statement of a city’s future vision. It acts as the most important long-term
policy and planning document to address issues and problems in a city. It provides
goals, objectives, zoning plans, and development/ redevelopment activities that every
department in the city should work for. It contains policies for every aspect of the city:
land use, housing, open space and conservation, circulation ( or traffic), noise, air quality,
and health and safety.
California State law ( Government Code Section 63500) requires each city and county
shall prepare and adopt "... a comprehensive, long- term general plan for the physical
development of the county or city, and any land outside its boundaries which ... bears
relation to its planning.” The general plan must address seven required elements: land
use, housing, open space and conservation, circulation, public safety, and noise. It may
also include optional elements ( such as park and recreation) specific to the city.
Capital improvements program is one of the multi- year programs established to
implement the general plan of a city. It aims at upgrading and expanding city facilities,
buildings, grounds, streets, parks, roads, and sewers. It serves as a guide to build new
facilities to meet the increasing demand for capital improvements throughout the city, as
well as to upgrade or replace outdated facilities.
As shown in Tables 1 and 2, there are 48 cities within the Inland Empire region. General
Plans and Capital Improvements Programs of these cities have been assessed in this
research project. GIS use in supporting the general plan and CIP development processes
has also been investigated. Appendices A and B show the detailed description of the
assessment.
Findings from this assessment are as follows:
1) General Plan Development
Of 48 cities in the Inland Empire region, 46 cities have provided information about their
general plan on web sites ( see Appendices A and B). These cities have already developed
the general plan for their cities and met the requirements of California State law. A few
cities are currently in the process of revising or updating the general plan since the
general plan is a living document and needs to be updated at a regular time based on the
condition changes in the cities. The California State law requires each city update the
housing element every five years.
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In preparation for a new general plan or update on an existing general plan, almost all the
Inland Empire cities have organized a General Plan Advisory Committee ( GPAC) and a
General Plan Steering Committee ( GPSC) ( or the GPAC/ GPSC- like committees) to help
the cities shape the future ( see Figure 2).
Figure 2 General Plan Development Process
Adopted from http:// www. accessduarte. com/ Generalplan/ documents/ Introduction. pdf
The GPAC, composed of City Commission representatives and a cross- section of
residents and business stakeholders, serves in a technical support capacity to the General
Plan Steering Committee. The GPAC members are in charge of helping the city define
and formulate the goals and policies for the general plan. GPAC duties include 1)
developing a background report for a new general plan or updating the background report
of the existing general plan, 2) updating each element in the existing general plan, 3)
reviewing drafts of each element in the general plan, and 4) transmitting draft elements to
the relevant City Commissions and GPSC for review.
The Planning and/ or Community Development departments in a city normally lead the
general plan update efforts, because they, by California State law, are the primary review
body for the general plan. They are responsible for making background report,
opportunity/ constraint report, and draft general plan to GPAC, GPSC, and City Council.
Consultant( s) may be hired to provide specific expertise in public outreach and education,
conduct a variety of technical analyses, and prepare the draft general plan.
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Environmental Impact Report ( EIR) typically is developed along with the general plan. It
evaluates the environmental changes or impacts due to the updates of existing general
plan. It includes thresholds and baseline information for evaluating future development
projects. It provides an environmental study of all data ( such as air quality, noise,
transportation, geology, etc) for future projects.
Public participation is a key component of the general plan update process. The cities in
the Inland Empire have used a number of methods to get residents and business
stakeholders to be involved in the general plan development/ update process. The methods
include questionnaire/ telephone surveys, workshops, and numerous council and
commission meetings or workshops. They also use special web sites and newsletters to
inform information about the general plan development process to residents. Also they
use GIS technologies to represent background and existing conditions ( including land
use, housing, and circulation elements) in geographical format.
Different cities have different focuses and policies for land use, community development,
street improvements, and others when they develop or update their general plans. For
example, the City of Big Bear Lake has placed more attentions to fire protection when
they update their general plan. Cathedral City, Lake Elsinore, Palm Desert, and Desert
Hot Springs have conducted a systematic and comprehensive transportation modeling
analysis for their general plan. The analysis helped the cities 1) identify the location and
extent of existing and proposed streets and roadways, 2) outline feasible intersection
improvements, and 3) program budgets for upgrading public transit facilities, railroads,
transportation terminals, and other transportation facilities.
All the cities periodically amend the general plans as new information becomes available
and as community needs and values change. Polices and procedures for general plan
amendments have been developed in many cities and can be found on their web sites.
Figure 3 shows the detailed process for the general plan update in the City of Ontario.
Similar to the general plan development process as shown in Figure 2, the City of
Ontario’s process consists of seven steps: Project Initiation, Community Outreach,
Technical Studies, Develop Preferred Land Use Plan ( LUP), General Plan Preparation,
Environmental Analysis, and Plan Adoption & EIR Certification. These seven steps are
being used by the City for the ongoing general plan update. More discussions on this
process are provided in later section.
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Figure 3 General Plan Update Process of the City of Ontario
Source: http:// www. ontarioplan. org/ images/ processdiagram. jpg
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The City of Corona has used ten steps for its general plan updates. These ten steps are as
follows3:
Step 1: A Vision for the City’s future was defined as the overarching framework for the
formulation of updated Plan policies. This addresses the intended functional
role, character, and quality of the built City and its natural environment. The
vision was crafted to reflect the collective input of Corona’s residents that chose
to participate in the visioning process.
Step 2: Guiding Principles that define a framework of expected outcomes of the
General Plan’s updated policies were formulated. These articulate specific
measures for the attainment of the Corona Vision.
Step 3: Background data regarding the existing conditions, trends, and projected
future conditions for the City’s physical, economic, social, and environmental
resources were compiled and analyzed. This data serves three purposes:
 As the basis for the articulation of planning issues to be addressed by Plan
policy, incorporating all studies required by state law;
 As measures to test the impacts of alternative growth and development
scenarios; and
 As the statutory “ Existing Setting” section of the General Plan
Environmental Impact Report ( EIR).
As the data base contains extensive written narrative, tables, and in excess of 70
maps, it is physically incorporated into a separate volume that legally is a
component of the General Plan and EIR. An overview of pertinent baseline and
projected conditions is contained in the relevant sections of the General Plan.
Step 4: Alternative growth and land use development scenarios were identified for the
City. As the City is approaching its build out, the alternatives focused on
development opportunities for the remaining vacant sites that are not currently
committed for preservation as open space and for re- use and improvement of
economically obsolete and physically declining commercial and industrial
districts and, to a very limited extent, residential neighborhoods.
The alternatives were evaluated for their comparative traffic and fiscal impacts.
The latter estimated the costs of public services to support the candidate use
and expected revenues. Cumulative effects on the fiscal balance of the City were
assessed.
3 Adopted directly from the City of Corona’s General Plan document.
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Step 5: A preferred growth and land use plan was selected in consideration of their
comparative impacts, as well as consistency with the Vision, Guiding
Principles, and objectives defined by Corona’s residents.
Step 6: Plan policies and implementation actions were updated based on the review of
existing policies for their consistency with the Vision, Guiding Principles, and
selected growth and land use plan, reflection of current issues and community
needs, understandability, effectiveness in previous applications, practicality and
feasibility, embodiment of state- of- the- art planning practices, consistency with
current legislation and court decisions, and reflection of community values and
City Council policy decisions.
Step 7: The Draft Updated General Plan was published incorporating an overview of
background data and projections, the Vision, Guiding Principles, and goals,
policies, and implementing actions. The Draft General Plan is made available
for public review and comment in writing or oral testimony at Planning
Commission and City Council hearings.
Step 8: A Draft EIR was prepared in accordance with the substantive and procedural
requirements of the California Environmental Quality Act ( CEQA). From the
date of publication, the DEIR is circulated for a 45- day period for public review
and comment. Responses to all comments are prepared and incorporated into
the Final EIR. The Final EIR is then reviewed and certified by the City Council.
Step 9: The Planning Commission and City Council will conduct public hearings on
the Draft General Plan and EIR. In consideration of the public input, the
Commission will make recommendations to the City Council regarding the
Plan’s content and certification of the Final EIR. The City Council will consider
the Commission’s input and conduct additional public hearings. Based on these,
the Council makes its final recommendations and adopts the General Plan with
changes, if necessary, and certifies the Final EIR.
Step 10: The adopted Corona General Plan is published and implemented.
2) CIP Development
Capital improvements program is a critical instrument to a city to achieve the goals and
objectives described in the general plan. It serves as a planning and financial tool to
identify a city’s capital needs and project priorities. It relates the capital needs to the
financial sources and allocates or funds to projects.
A capital improvements program is normally composed of two parts -- a capital budget
and a capital program. The capital budget is the upcoming year's spending plan for capital
projects or capital purchase. The capital program is a five- year implementation plan that
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describes capital expenditures to be funded by the capital budget. The CIP is updated
annually.
Development of a CIP in a city is a process by which capital projects are identified,
prioritized, selected, and incorporated into the long range fiscal and strategic planning of
the city. It requires effective leadership and the involvement and cooperation of all
departments of the city.
Many cities in the Inland Empire region have provided information about their capital
improvements program ( CIP) on web sites ( see Appendices A and B). The information
includes CIP benefits, CIP development processes, and budgets for CIP projects. For
example, the City of Moreno Valley lists approximately 650 projects that are approved by
the City Council for five- year ( 2007- 2012) and proposes $ 1.4 billion for these projects in
order to improve and maintain the City’s infrastructure.
All the available CIP budgets and programs of Inland Empire cities have been reviewed
and compared in this research. From the review, it is found that the development of a CIP
in a city is an extensive annual process that requires the following ten steps4:
Step 1: Adopt a CIP bylaw and establish a CIP Committee
Many Inland Empire cities, including the City of Montclair, have established a CIP
policy or bylaw to create and empower a CIP Committee for the CIP development. The
CIP Committee normally is composed of members of City Council and representatives
from different departments. The Committee is chaired by the Director of
Engineering/ Public Works department, the Director of Community Development, or the
Director of Finance Department. Due to the unique nature of CIP development, more
than 30 Inland Empire cities have appointed the Director of Public Works to lead the CIP
Committee.
One of the first tasks of the CIP Committee is to define the criteria for CIP project
scoping and equipment purchase and to prepare a timetable and a working plan for
completing the CIP.
Step 2: Prepare an Inventory of Existing Facilities
A complete inventory of all city properties and assets is prepared in this step. The
inventory normally includes information about the year the existing public facilities were
built or acquired, the date of last improvement, the conditions of the facilities, etc.
4 The ten steps were originally developed by the Division of Local Services' Municipal Data
Management and Technical Assistance Bureau
( http:// www. mass. gov/ Ador/ docs/ dls/ publ/ misc/ cip. pdf).
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Extensive work has been conducted by many cities to collect data for the inventory. Data
collection methods include road condition surveys, traffic volume surveys, etc. A
number of cities, including the Cities of Palm Springs, Ontario, Rancho Cucamonga, and
Hemet, have used GIS- based pavement management systems to assess the pavement
conditions of city streets.
Engineering consulting services are often contracted out for the preparation of the
inventory.
Step 3: Evaluate Previously Approved, Unimplemented or Incomplete CIP
Projects
Many cities have identified and assessed the status of previously approved CIP projects
before they develop new CIP projects. For example, the Cities of Corona and Temecula
have monthly activity reports that describe the progress of CIP projects and monitor
previously approved, unimplemented, or incomplete CIP projects regularly. In doing so,
the cities can have a better understanding of the status and needs for infrastructure
improvements.
Representatives from departments of Budget, Engineering/ Public Works, Community
Development, members of the CIP Committee normally gather together to update the
implementation progress of CIP projects that are approved in prior years. The results of
this update help the city to determine if new CIP projects are needed in the coming fiscal
year.
Step 4: Assess Financial Capacity
The CIP Committee works with the people in the Finance department to assess the ability
of the city to afford CIP projects. This financial analysis is often regarded by many cities
as a required step for CIP development. The analysis examines recent and anticipated
trends in city reserves, revenues, and expenditures. It helps the CIP Committee find
funding sources for CIP projects and allocate the available budget to the CIP projects for
the coming fiscal year.
Both the qualitative and quantitative methods, including trend analysis, economic
indicators, and professional judgment, have been used in many cities for financial
analysis. Multiple funding sources have been identified for CIP projects. For example the
City of Palm Springs has the following primary funding sources:
 Operating Funds – They combine the General Fund and the Community
Promotion Fund. The General Fund accounts for all the general revenue of the
City except those specifically required to be levied or collected for other City
funds. The Community Promotion Fund accounts for revenues related to the
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promotional efforts of the City with regards to tourism and related activities. The
top three operational fund revenues for the City of Palm Springs are property tax,
sale tax, and transient occupancy tax.
 Special Revenue Funds – These funds are used to account for specific revenues
that are legally restricted to expenditures for particular purposes.
 Enterprise Funds – These funds are used to account for operations that are
financed and operated in a manner similar to private business enterprises. The
intent of the governing body is that the costs of providing goods or services to the
general public be financed or recovered primarily through user charges.
 Internal Service Funds – These funds are used to account for the financing of
goods or services provided by one department or agency of the City to other
departments or agencies on a cost reimbursement basis.
 Debt Service Funds – These funds are used to account for the accumulation of
resources for, and the payment of, general long- term debt principal and interest.
Step 5: Solicit, Compile and Evaluate New CIP Project Requests
The CIP Committee solicits new CIP potential projects from various departments
including Engineering/ Public Works, Community Development, Parks and Recreation,
etc. Many cities have used request forms for solicitation. The forms contain a clear
statement of the need and justification for the proposed project, costs, impacts on budget,
and a proposed implementation schedule. Some cities also receive proposed CIP projects
through a series of workshops with residents and business stakeholders.
The CIP Committee is responsible for reviewing all proposed capital projects for timing
and cost considerations and preparing a preliminary capital improvement plan
recommendation for further review by the Department Directors and City Council.
Step 6: Prioritize Projects
The CIP projects listed in Step 5 are ranked in priority as objectively as possible.
Normally the CIP Committee first establishes criteria for project prioritization. For
example, the City of Fontana defines four levels of priorities for CIP projects. The criteria
used to determine the priorities of CIP projects are as follows:
Priority 1: CIP projects are essential and should be started within the year.
Priority 2: CIP projects are necessary and should be started within 1 to 3 years.
Priority 3: CIP projects are desirable and should be started within 3 to 5 years.
Priority 4: CIP projects are deferrable due to lacking funding or other reasons and
are scheduled to start within 5 to 10 years.
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There are many methods available for prioritizing proposed CIP projects. These methods
include goal achievement, numerical ratings, consensus building, priority indexes,
programming evaluation matrices, and multi- objective systems analysis techniques. The
methods commonly used by the Inland Empire cities are numerical ranking and
consensus building methods.
When the numerical ranking method is used, each proposed CIP project is evaluated and
scored based upon a number of factors. A relative weight is then assigned, largely by the
City's policy makers or the members of the CIP Committee, to each factor in the ranking
system. The ranking of a CIP project normally is determined based on the total weights of
the factors that are associated with the CIP project. It is noted that both the relative
weight placed on a CIP project and financial limitation are important elements to the CIP
project prioritization process.
Step 7: Develop a Financing Plan
The CIP Committee in this step develops a CIP financing plan based on the financial
capabilities identified in Step 4 and CIP project priorities determined in Step 6. The
financing plan describes the allocation of available budget to CIP projects.
Many Inland Empire cities select the “ Pay- As- You- Go” method or “ no debt” method to
provide funding for CIP projects.
Step 8: Adopt a Capital Improvements Program
The capital budget and the capital program developed by the CIP Committee are
submitted in this step to the City Council for review and approval. The Council then
holds a series of public hearings 1) to inform the residents, business stakeholders, and the
general public of the ongoing needs for capital expenditures in the city, and 2) to receive
comments on the city’s CIP budget plan and program.
The CIP Committee then re- evaluate and revise the CIP budget and program based on the
comments and recommendations received from the public hearings. The revised CIP
budget and program are in effect after they are approved by the City Council for the
coming fiscal year.
Step 9: Implement Approved CIP Projects
Once the City Council has adopted the capital budget/ program and the fiscal year begins,
departments are authorized to start implementing CIP projects. All departments are
required to monitor and manage their CIP budgets and spend only amounts allocated by
the City Council. When unforeseen costs arise to the level that they cannot be covered by
the original adopted budget, the City Manager may recommend budget modifications to
the City Council. The City Council may approve budget modification resolutions for the
necessary changes.
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The CIP Committee monitors and manages the city- wide CIP efforts and informs various
departments and the public of the implementing progress of CIP projects through
newsletters and monthly reports.
Step 10: Update and Archive Existing/ Ongoing CIP Projects
The CIP Committee may prepare revisions of the CIP budget/ program when the CIP
needs are changed. The revisions provide necessary information for the following’s year
CIP project development. When CIP projects are completed, the CIP Committee needs
to achieve all the data generated from the CIP projects.
It is noted that the above ten- step process is the general CIP development process derived
from all the Inland Empire cities. The individual CIP development process in a city may
differ from the above described process.
24
3. GIS USE IN GENERAL PLAN AND CIP DEVELOPMENT
PROCESS
Geographical Information System ( GIS) is a system that captures, stores, analyzes,
manages and presents data and associated attributes which are spatially referenced to
locations on earth. GIS technologies are useful tools for cities since many properties and
facilities managed by cities are location- oriented.
Inland Empire cities have adopted GIS technologies for producing maps and managing
city- wide geo- spatial data. Their GIS use provides numerous benefits to various
departments. One of the benefits is to help improve the management of city data and
work flow procedures. GIS can link spatial data sets together to a common geo- reference
system. It thus helps departments share their data. One department can benefit from the
work of another. GIS data collected once can be used many times.
Another benefit is to help decision- makers make better decisions. GIS is a tool to query,
analyze, and map data in support of the decision making process. With the information
presented succinctly and clearly in maps, decision makers can focus more on the issues
and problems which may not be readily apparent in tables.
3.1 GIS Use in Inland Empire Cities
This research has investigated all the Inland Empire cities from the view of GIS use in
support of businesses in various departments. From this investigation, it is found that
GIS use varies from city to city and can be grouped in three levels: City- side,
Department- wide, and Ad hoc.
GIS use in the cities of Ontario, Riverside, Beaumont, Montclair, Moreno Valley, and
Murrieta can be considered at the city- wide level. GIS data, tools and applications in
these cities are developed and operated in an enterprise GIS environment. Interactive
GIS web sites have been available in these cities for displaying and querying land use,
parcel information, CIP projects, and others.
In order to administer the enterprise GIS environment, GIS people normally work under
the Information Service or System department in these cities. They are better equipped to
provide recommendations on City policy, service improvements, and future community
developments. They are responsible for administering, creating, maintaining, and
operating the city’s GIS databases and applications for parcels, subdivisions, easements,
legal lots, addresses, public and private right- of- ways, as well as the city’s infrastructure
assets ( water, sewer, storm water, and other City- owned properties). They provide GIS
services for data capture and conversion, business process analysis, training and support
of GIS technicians, and support/ upgrade of enterprise GIS software.
25
GIS use at the department level includes the City of Palm Springs. GIS people in this
level normally work under the Planning or Community Development Department. Their
daily GIS services may include 1) creating customized maps for various departments, 2)
performing data capture/ conversion from existing GIS data, or data collection using
Global Positioning System ( GPS) technologies, and 3) providing city- wide hardcopy
maps or digital maps ( in PDF format) to the public.
GIS use at the ad hoc level indicates that the cities normally lack GIS resources and
expertise. When the cities need ad hoc GIS services, they often hire GIS consultants for
help.
3.2 GIS Use for General Plan and CIP Development
This research has investigated all the Inland Empire cities from the view of GIS use in
support of general plan and CIP development process. It is found that the GIS
technologies have been widely employed to create maps for general plan, zoning, specific
plan and new developments/ redevelopments. However, the GIS use in support of CIP
development process can be observed only in a few cities. Most Inland Empire cities
have used EXCEL, ACCESS and other spreadsheet- like Windows applications for the
CIP development. CIP projects are often represented in tables.
The City of Moreno Valley is one of the few cities that use GIS for CIP development.
The city has about 650 capital projects in its proposed five- year CIP ( 2007- 2012). Each
of these projects is described by a project detail sheet. The purpose of the detail sheet is
to provide a comprehensive view of the project in the CIP including an extensive project
description, justification, expenditure, revenue, and GIS map display of project location
among other detailed information. Figure 4 shows an example of the detail sheet.
The City’s CIP document is published annually to include the completion and addition of
new capital projects adopted each fiscal year. With each revision, the carryover CIP
projects will remain as part of the document from previous years until the project or
phase is complete. All new CIP projects that are not previously on the list are added, and
all completed CIP projects are removed from the project list.
The Cities of La Quinta and Palm Desert have used GIS tools to summarize their CIP
projects in GIS maps ( see Figures 5 and 6).
The City of Colton also provides each CIP project with a project detail sheet. However
the sheet only shows funding sources and project location by street addresses and a photo
snap of the project site ( see Figure 7). The City of Fontana has used Google Map as a tool
to layout the location of CIP projects ( see Figure 8). Although the two cities have not
used GIS technologies for CIP development, however their way of using graphic images
for CIP development is simple but effective.
26
Figure 4 GIS Use for CIP in the City of Moreno Valley
Source: http:// www. moreno- valley. ca. us/ city_ hall/ financial/ 07- 08_ MV- CIP. pdf
27
Figure 5 GIS Use for CIP in the City of La Quinta
Source: http:// www. la- quinta. org/ Modules/ ShowDocument. aspx? documentid= 2879
28
Figure 6 GIS Use for CIP in the City of Palm Desert
Source: http:// www. cityofpalmdesert. org/ Index. aspx? page= 249
29
Figure 7 CIP Detail Sheet of the City of Colton
Source: http:// www. ci. colton. ca. us/ Documents/ PW/ Binder1. pdf
30
Figure 8 CIP Detail Sheet in the City of Fontana
Source: City of Fontana
31
4. CASE STUDY: CITY OF ONTARIO
After reviewing all the available general plans, CIP documents, and GIS services and
applications of the Inland Empire cities, this research team has selected the City of
Ontario as the case study city for further assessment. The reasons of choosing Ontario are
as follows:
1) The City has recently embarked on a two- year planning program to update the
general plan for the entire Ontario community and its public enterprises for the
next several decades. The Ontario General Plan Update embraces all of the City’s
functions of governance and provides guidance for various investment and
development activities.
2) The City has a strong enterprise GIS environment in which geographical data acts
as a foundation for many business applications used by various departments.
Further, geographical data have been integrated with the tabular data of multiple
business processes. The enterprise GIS environment indicates extensive GIS use
for applications in Police, Building, Planning, Fire, Business License, Code
Enforcement, Public Works and Housing.
3) The City has an official web site that provides sufficient information about the
general plan, capital improvements programs, and GIS applications. The web site
makes the research team believe the City must have had GIS applications and
services that facilitate the transportation project development process.
The research team has reviewed the City’s general plan and various available CIP
documents. Further, the research team members have interviewed the City’s engineers
and planners who are responsible for the development of capital improvements programs.
Below are the observations of the City’s development process for the General Plan
Update and CIP, as well as the status of GIS use in the City:
1) The City has a systematic process for updating the General Plan ( see Figure 3).
This process, similar to the ten- step General Plan Update process of the City of
Corona, evaluates the City’s existing conditions in its Project Initiation phase.
GIS technologies, as indicated by the City’s engineers and planner ( being
interviewed), have been widely used to produce maps for the evaluation of
existing conditions.
With the GIS maps presented to the Planning Commissions, City Councils, and
stakeholders, the City has identified various issues, constraints, and opportunities
that should be addressed in the General Plan Update. The issues are related to
city growth, conservation of natural resources, job/ housing balance, mixed- use
neighborhoods, community and social amenities, sense of place, downtown
development, historical preservation, and traffic/ mobility.
32
Three community workshops have been conducted to get the communities to be
involved in the General Plan Update process. A website
( http:// www. ontarioplan. org) has been launched to inform the public of the
General Plan updates. A series of strategic advisory meetings has been conducted
to develop the City’s visions that are shared by all the communities.
Technical studies including economic trends prediction, market analysis,
geotechnical studies, hydrological studies, hazard analysis, and biological analysis
have been conducted to get inputs for future land use planning. GIS technologies
have been used in these technical studies.
The City has further conducted traffic and fiscal analyses and developed a
preferred land use plan ( LUP). Currently the City is conducting a series of
community workshops to get the inputs and comments from the public on the new
land use plan. GIS technologies have been used in these technical studies.
With the preferred land use plan as inputs, the City, according to the General Plan
Update process as shown in Figure 3, will develop goals, policies and actions for
the updated General Plan. The updated General Plan will contain the revised land
use element, circulation element, open space & conservation element, safety
element, housing element, community design element, parks & recreation
strategic plans and other elements.
The City will conduct environmental analyses for the programs described in the
General Plan. The analyses will include identifying CEQA5 requirements,
determining potential environmental impacts, and developing mitigation
measures.
Through a number of Planning Commission and City Council public hearings, the
City will adopt the General Plan Update. The environmental Impact Report ( EIR)
document will be certified. The updated General Plan will be the living document
to guide the City for the future.
2) The City has developed its Five- Year ( 2003- 2008) Capital Improvement Program
( CIP) consistent with the goals and objectives established by the City Council in
the General Plan. CIP Projects are selected based on an assessment of needs and
available funding. Projects with funding limitations are considered on an
individual basis, while those without such funding limitations are considered
relative to the overall needs of the City.
The Engineering Department, as indicated by the City’s engineers and planners, is
responsible for programming, planning, designing & administering construction
of the annual capital improvement program. Following the similar ten- step CIP
5 CEQA – California Environmental Quality Act
33
development process as described in the previous section, the Engineering
Department leads a CIP Committee to prepare an inventory of existing facilities
and administer CIP projects. Working with the people from the Administrative
and other departments, the CIP Committee develops and updates annual CIP
budget based on the needs of the City. In summary, the City uses the CIP as a
planning tool to 1) systematically identify capital improvement needs and 2)
coordinate the financing and timing of those needs in a manner that assures the
CIP projects use the City’s limited resources most responsibly and efficiently.
The City has a limited GIS use for the support of the CIP development process.
All the CIP projects are represented normally in table format. No detail sheets are
developed for CIP projects.
34
5. GIS- BASED CIP DEVELOPMENT FRAMEWORK
Considering the limited GIS use in the Inland Empire cities for the CIP development, this
research has developed a GIS- Based CIP conceptual framework. The purpose of this
framework is to help the Inland Empire cities identify and prioritize CIP projects and
develop CIP budgets effectively.
As shown in Figure 9, the conceptual framework consists of the following components:
 CIP Committee
 Inventory of Existing Facilities
 Requests of Projects
 Existing CIP Projects
 Web- Based GIS Services
 GIS Databases
 Funding Sources
 Financial Analysis
 Project Prioritization
 Capital Projects/ Capital Budget
 CIP Implementation
35
Figure 9 GIS- Based CIP Conceptual Framework
CIP Committee
Inventory of
Existing Facilities
GIS
Databases
Requests of
Projects
Web- Based
GIS Services
Funding
Sources
Financial
Analysis
Project
Prioritization
Capital Projects /
Capital Budget
Existing
CIP Projects
CIP
Implementation
36
CIP Committee is an administrative component in the framework. Members of the CIP
Committee are in charge of implementing all the components described in the conceptual
framework.
GIS technologies are incorporated into the ten- step CIP development process as
discussed in the previous section. The Web- based GIS services acts as a core component
that should have the following functions:
1) Web Services for Existing Facilities. The Web services allow existing
facilities to be stored geographically to the GIS Databases component. When
existing facilities are already collected and represented in GIS format ( such as in
ESRI6’ s Shapefiles or Geodatabases), the interfaces can place them into the GIS
Databases component directly. The interfaces may also have editing capabilities
that help CIP users geocode existing facilities ( point, linear, or polygon features)
and store them in the GIS Databases component.
2) Web Services for Project Request. The Web services provide a working
environment in which CIP users can get project requests from various city
departments and enter them into the GIS Databases component through in a
standardized project detail sheet. An example standardized detail sheet could be
derived from those of the City of Moreno Valley ( see Figure 4). CIP users can
define the scope of a potential CIP project geographically.
3) Web Service for Existing CIP Projects. The Web services keep track of all
the ppreviously approved, unimplemented or incomplete CIP Projects. They
provide interfaces to update these CIP projects in the GIS Databases component
when the projects are complete or the funding situations are changed for the
projects.
4) Web Service for Project Prioritization. The Web services have query
capabilities to retrieve potential CIP projects from the GIS Databases. The detail
sheets of the retrieved projects should be provided to the CIP Committee
members for prioritization. In addition, this component may also provide an
EXCE- like ranking Web service with which the CIP Committee members can
make effective rankings for potential CIP projects. When other prioritization
methods are used, the component should be flexible enough to include the
methods in the Web services.
5) Web Services for CIP Implementation. The Web services keep track of all
the approved CIP projects under implementation. It provides progress reports for
the CIP projects.
6 ESRI – Environmental Systems Research Institute
37
The Financial Analysis component is also a core element with which the budget for
supporting CIP projects can be planned. This component along with the Funding Sources
component produces financial information for CIP project prioritization.
There have been a number of capital project management systems that can be found
nation- wide to implement fully or partially the above conceptual framework. For
example, the City of Davis, California has developed a simple Web- based interactive
mapping system for capital improvements project ( see Figure 10). Users can select a CIP
category ( Drainage, Facilities, Signal, Transportation, Wastewater, Water, Miscellaneous,
or all) and display all the CIP projects geographically of the selected category. This
mapping system displays all the CIP projects in dots. It does not have Web services to
help prepare the initiation of CIP projects.
Figure 10 Web- Based CIP Map in the City of Davis
Source: http:// www. city. davis. ca. us/ pw/ CIP/ cssmap. cfm
38
The City of San Jose has developed a comprehensive system for capital project
management ( see Figure 11). This system enables users to select and display CIP
projects that are in pre- construction, construction, or completion. When a specific CIP is
selected, the progress report related to the CIP project is presented to the users. This
system also has a search mechanism to allow users to query CIP projects based on certain
criteria.
This system, similar to the system shown in Figure 10, is also a mapping display system.
It does not have other Web services that can help the CIP users to prepare an inventory of
existing facilities, identify potential CIP projects, prioritize CIP projects, and monitor and
update approved CIP projects.
Figure 11 Capital Project Management System in the City of San Jose
39
6. PROPOSED FUTURE WORK PLAN
CIP is a dynamic document that is continuously updated as the City moves through a new
fiscal year. CIP projects may change or be re- prioritized when construction cost
estimates are changed, grant opportunities are available, or new Council directions are
enforced.
The GIS- based conceptual framework considers the above dynamic characteristic of the
CIP development process. In order to implement this framework and promote the GIS use
in Inland Empire cities, this research has proposed a future work plan. The work plan has
the following tasks:
1) Develop a Manual for CIP development. A Manual that documents the best
practices for CIP development is needed in the Inland Empire cities since the CIP
development varies from city to city. The Manual will further elaborate the ten-step
CIP process with more examples and case studies. It is anticipated that the
Manual will be a good guidebook for Inland Empire cities.
2) Develop a Web- based capital project management system that fully implements
the conceptual framework described in the previous section. A city which has
strong GIS use for city businesses could be selected for this task. The City of
Ontario or the City of Moreno Valley could be a good candidate for the
management system.
The capital project management system will be considered as a model for other
cities. It should be designed to be scalable and transferable. Once the system is
developed and used by a city, it should be easily applied to other cities with minor
changes of code.
3) Provide CIP workshops to Inland Empire cities. The purposes of having the CIP
workshops are to train city engineers and planners on how to use the Web- based
capital project management system. It is accepted that the workshops will be held
after the capital project management system is developed and fully operated in a
city. Also the workshops will provide a working environment to allow people to
share experiences in CIP development.
40
7. CONCLUSIONS
General plans and capital improvement programs ( CIPs) are the documents that shape the
future of a city. Many cities in the Inland Empire region have been using GIS
technologies for General Plan updates and CIP development. This research has
conducted an assessment of all the Inland Empire cities on their General Plan and CIP
development processes. The assessment is limited to the review of all the General Plans
and CIP documents that can be found on city’s web site, as well as the investigation of
GIS data and services used in the cities for various programs.
Through the assessment, this research has found the following findings:
1) Of 48 cities in the Inland Empire region, 46 cities have provided information
about their general plan on web sites. In responses to requirements of California
State law, these cities have developed or updated the general plan for their cities.
Different cities have different focuses and policies for land use, community
development, street improvements, and others when they develop or update their
general plans.
GIS technologies have been widely used in the Inland Empire cities for the
development of general plans. Example uses are 1) GIS maps that display city
streets, parcels, land use polices, zoning plans, and existing conditions of city
facilities, 2) GIS tools/ services to help the cities provide information for the
preparation of various elements including land use, housing, open space and
conservation, circulation ( or traffic), noise, air quality, and health and safety.
The General Plan Update processes described by the Cities of Corona and Ontario
are the example processes that show the methods and procedures used for the
general plan updates.
2) The CIP development process within the Inland Empire cities involves ten steps.
The most important of the process is to establish a CIP Committee that is led by
the Director of Engineering/ Public Works, Director of Finance Department, or the
Director of the Community Development.
There are many methods available for prioritizing proposed CIP projects. These
methods include goal achievement, numerical ratings, consensus building, priority
indexes, programming evaluation matrices, and multi- objective systems analysis
techniques. The methods commonly used by the Inland Empire cities are
numerical ranking and consensus building methods.
All the Inland Empire cities have been investigated from the view of GIS use in
support of CIP development process. It is found that the GIS technologies have
41
been widely employed to create maps for general plan, zoning, specific plan and
new developments/ redevelopments. However, the GIS use in support of CIP
development process can be observed only in a few cities. Most Inland Empire
cities have used EXCEL, ACCESS and other spreadsheet- like Windows
applications for the CIP development. CIP projects are often represented in tables.
3. The GIS- based conceptual framework considers the above dynamic characteristic
of the ten- step CIP development process. In order to implement this framework
and promote the GIS use in Inland Empire cities, this research has proposed a
future work plan whose purpose is to implement a capital project management
system in an Inland Empire city.
42
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44
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45
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46
56) City of Rancho Cucamonga, Preliminary City Budget Summary FY 08/ 09 of the
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58) City of Redlands, General Plan of the City of Redlands,
http:// www. ci. redlands. ca. us/ plans/ general_ plan. htm
59) City of Rialto, Capital Improvement of the City of Rialto,
http:// www. rialtoca. gov/ finance_ 1436. php
60) City of San Bernardino, FY 07/ 08 Summary of Revenues, Expenditures, and
Transfers of the City of San Bernardino,
http:// www. ci. san- bernardino. ca. us/ civica/ filebank/ blobdload. asp? BlobID= 4976
61) City of San Bernardino, General Plan of the City of San Bernardino,
http:// www. ci. san-bernardino.
ca. us/ pdf/ DevSvcs/ General% 20Plan% 20Document. pdf
62) City of Twentynine Palms, General Plan of the City of Twentynine Palms,
http:// www. ci. san-bernardino.
ca. us/ pdf/ DevSvcs/ General% 20Plan% 20Document. pdf
63) City of Upland, Capital Improvement Program of the City of Upland,
http:// www. ci. upland. ca. us/ asp/ Site/ Finance/ Introduction/ GetPDFFile. asp? ID= 34
64) City of Upland, General Plan of the City of Upland,
http:// www. ci. upland. ca. us/ asp/ Site/ ComDev/ Planning/ GeneralPlan/ index. asp
65) City of Victorville, Annual Budget of the City of Victorville,
http:// ci. victorville. ca. us/ uploadedFiles/ AboutVictorville/ VV_ general- plan_ 12-
07. pdf
66) City of Yucaipa, Capital Improvement of the City of Yucaipa,
http:// www. yucaipa. org/ cityBudgetCip/ PDF_ Files/ Budget_ CIP/ 2007_ 08/ CIP. pdf
67) City of Yucaipa, General Plan of the City of Yucaipa,
http:// www. yucaipa. org/ cityDepartments/ communityDevelopment/ generalPlan. ph
p? x= 3& y= 3
47
68) Tanya Kmogorova and Robert O’Neil, Integrating GIS and Capital Improvements
Program: Quantifiable Prioritization Process. Infrastructure Planning and Geo-
Resources, Public Works Division, Bernalillo County, New Mexico.
http:// gis. esri. com/ library/ userconf/ proc06/ papers/ papers/ pap_ 1308. pdf
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9. APPENDICES