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Capita' Improvements Budget, 1974-78, Albemarle, 

North Carolina 

TTeTcT 


n r rsl on -dl Hoi 

Ltsbyry N C. 28144 (Heroid 

on Name and Address 

NATURAL & ECONOMIC RESOURCES 
OF COMMUNITY SERVICES 
27687 - RALEIGH, N.C. 27611 

I Agency Name and Address 

3nt of Housing and Urban Development 
Northwest Plaza 
boro, N. C. 27408 


J , Wei lev 


Proiect/Task/Work Unit No, 

4802 Albemarle 


CPA- NCP- 04-20- 1007 




C1B- 1974-78 


The Capital Improvements Budget is a coordinated, 
comprehensive list of improvements needed by the City 
of Albemarle during the five fiscal year periods 

1974-1978, 




.00 








PREPARED FOR: 

CITY OF ALBEMARLE 

Elbert L. Whitley, Jr., Mayor 
Jack F. Neel, City Manager 
Ben Morris, Treasurer 
Tom Worley, Administrative 
Assistant 

CITY COUNCIL 

Newell D, Blalock 
Cecil D. Duckworth 
John M. Morrow 
G. T. Rabe, Jr, 

Robert L. Vick 

PREPARED BY: 

PLANNING BOARD 

Gerald H. Ehringer, Chairman 
C. R, Earnhardt 
Arlie Lowder 
J. P. Mauldin, Jr. 

Lonnie Morton 
Elworth Plyler 
Hoyle Poplin 
Bill Tobias 
Ell F, Wilson 
George T. Winecoff 

TECHNICAL ASSISTANCE 
PROVIDED BY: 

State of North Carolina 
Department of Natural & Economic 
Resources, Division of Community 
Services, Piedmont Field Office, 
Salisbury, N. C. 

Mathey A. Davis, Chief 

Herold J. Weiler, III, Planner- in- Charge 
M. Eileen Antosek, Stenographer 


The preparation of this 

report was financed 


in part through an urban planning grant from 
the Department of Housing and Urban Development, 
under the provision of Section 701 of the 
Housing Act of 1954, as amended. 




ACKNOWLEDGEMENTS 


Two city employees should be singled out 
and acknowledged for their assistance in 
the preparation of this report. 

MR. BEN MORRIS was valuable for his 
assistance on the city finances. 

MR. TOM WORLEY conducted the initial 
interviews of department heads,, and 
helped in coordinating the various 
project requests. 


Digitized by the Internet Archive 
in 2016 


https://archive.org/details/capitalimproveme1973albe 


INTRODUCTION 


Today's elected officials in local government are 
faced with strong competition for the tax dollar. On one side 
is the taxpayer insisting that more should be accomplished with 
present funds available. On the other side is the spending 
agency saying that the tax yield is inadequate to provide ade- 
quate services. 

The capital improvement budget is one tool Albemarle 
officials and administration have at their disposal to assist 
them in meeting these requests in accordance with the city's 
ability to pay. In addition,, the capital budget is a tool 
used to translate the Land Development Pl an and Community 
Facilities Flan into reality. 

While the public improvements which are programmed into 
the capital improvements budget are expenditures that help over- 
come past deficiencies, replace present facilities, and expand 
the public's community facility base to more efficiently handle 
future growth, the capital improvements budget is more than 
just a list of proposals from the different city departments. 
This program provides a means for scheduling work more effici- 
ently and in logical steps. For example, a longer period of 
time is available to review the problems of technical design or 
land purchase ahead of actual need. When this programming is 
done, plans for construction of a project can be. completed in 
an orderly manner. The scheduling of land purchase, construc- 
tion and purchase of equipment can be objectively made to avoid 
as much as possible, the peaks and valleys in large capital 
outlays for the city. 

Scheduling permits another advantage in that a balance 
of pay-as-you-go and bond financing for certain capital improve- 
ments can be worked out with the local government commission. 

By scheduling and maintaining the capital improvements budget, 
the best selection of project alternatives can insure the public 
support for using the available but limited funds. In so doing, 
public improvements on the basis of personal whims, political 
strategy, promotion by an employee personality or organized 
pressure groups is vastly reduced. The citizens of the city 
are thereby protecting themselves while promoting long-range 
thinking and the achievement of the community' s total develop- 
ment goals. 

The objective of the Capital Improvements Budget is to 
maintain a proper balance between operation and capital expendi- 
tures in relation to revenues. In so doing, this capital budget 


















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2 


should not be confused with the annual operating budget. The 
annual budget is a program of financial obligations for a one- 
year period. Yearly salaries, operation and maintenance costs 
of city services and facilities and capital expenditures are 
all a part of the annual budget. The annual budget includes 
all items that are both re-occurring and non- re-occurring needs 
regardless of the size of the expenditure. The capital improve- 
ments budget itemizes only those items anticipated as capital 
outlays during the next five fiscal years. 

The annual budget should reflect items of the capital 
budget for each particular year, the appropriate section of 
the capital improvements budget should be reviewed annually and 
extended by another year. The annual extension of projects 
should be based on the recommendations of the public improve- 
ments program. Using this methodology, a framework for a con- 
tinuing comprehensive financial program can be maintained, and 
city officials will be able to provide adequate municipal ser- 
vices on a sound fiscal basis. 


FINANCING PUBLIC IMPROVEMENTS 

To obtain public improvements, ingenuity coupled with 
sound financial policies should be exercised. While there is 
no ideal way to finance all capital improvements, certain methods 
are best suited to particular needs. Listed below are some 
suggested sources and methods for acquiring capital improvements. 


Bonding 


Albemarle’s city officials, as a means of financing 
needed public improvements, have, on several occasions, issued 
general obligation bonds to help meet these, needs. The oldest 
bonds yet to be retired are Water and. Electric Light Bonds 
issued in 1948. At the current rate, the issue will be retired 
in 1988. Table A lists those general obligation bonds out- 
standing as of July 1, 1972. (It also includes the Water and 
Sewer bonds authorized by voter referendum in August, 1971.) 

As of June 30, 1972, there was a total outstanding debt 
of $6,360,000. These improvements will be paid off in 1994. 
The various bonds have been issued in different amounts and 
also with different rates of interest. Percent interest on 
outstanding debt ranges from 1/4% to a high of 5%. 
































3 


Table A 

Outstanding General Obligation Bonds on 
July 1, 1972, Albemarle, North Carolina 

Year 


Amount of 

Issued 

Type of Bond 

I s sue 

1948 

Water and Electric 

Light 375,000 

1949 

Water 

750,000 

1952 

Sanitary Sewer 

75,000 

1960 

Water 

425,000 

1961 

Sanitary Sewer 

1,105,000 

1962 

Electric 

10,000 

1966 

Sanitary Sewer 

80,000 

1969 

Fire Station 

70,000 

1969 

Electric 

2^5,000 

1970 

Electric 

200,000 

1972 

Water 

1,700,000 

1972 

Sewer 

1 - 325,000 
6 , 360,000 

Source : 

City Treasurer 



General Obligation Bonds 


General obligation bonds are financed from property 
taxes 5 through benefit assessment, or by utility revenues. The 
assessed valuation of property in the municipality is pledged 
as security toward payment of general obligation bonds. These 
bonds are, therefore, tax liens on all assessable property in 
the city. 


State laws regulate general obligation bond sales by a 
municipality. For example, the legal general obligation bond 
debt limits for North Carolina municipalities is eight per cent 
of said assessed valuation (appraised value after July 1, 1973).^ 
Some general obligation bonds, however, are exempt from the debt 
limit. Those issued for improvements to the municipal water 
system and, in some cases, those redeemed by benefit assessment 
(for street and other improvement s ) 2 are not affected by the 
legal debt limit. By law, bonds roust be issued within five years 
after a bond ordinance, is passed, and payments must start within 
three years after the^bond is issued. ^ Time limits are imposed 
on the various bonds. In general, bonds cannot run for longer 


1. North Carolina General Statutes (G.S.) 160-383 (After July 1, 
1973: G.S. 159-55) 


2. 

G. 

So 

160-383 

(After 

July 

1, 

1973 : 

Go S. 

159-55) 


3. 

G. 

s. 

160-391 

( Af ter 

July 

1, 

1973: 

Go So 

159-64, 

65) 

4. 

G. 

s. 

160-382 

( After 

July 

1, 

1973: 

G. So 

159-122 

will set 


a maximum of 40 years and allow local government commission 
to set useful life of capital improvements.) 



















































































■ 















4 


than the useful life of the improvement for which the bonds are 
issued. State law specifies maximum length of terms for the 
following improvements: public sewer system or public water 

supply, 40 years; parks, 50 years; building of fireproof con- 
struction, 40 years; and fire trucks, 10 years. 

As a practical financial rule, a municipality should 
keep its debt retirement scheduled within an amount that re- 
quires at least 25% of the principal always to be due for 
amortization within a five year period. 1 2 

Revenue Bonds 

Certificates called revenue bonds produce income through 
both principal and interest. Expenses can often be met exclu- 
sively from the earnings of a new facility (e.g., water plant). 
Interest rates on this type of bond depend on the type of 
facility financed and its economic feasibility. 

State law regulates municipal revenue bond sales. The 
maximum length that bonds can run is 40 years, and the maximum 
rate of interest is not set.^ Revenue bonds do not count against 
the community's legal bonding capacity in that they eventually 
pay for themselves. 

While revenue bonds are outside the debt limit, revenues 
must be sufficient to cover payment of the bonds after all 
operating costs have been met. It is sometimes necessary to 
increase user charges to meet these conditions. 

Current Revenue s 

In addition to general operating costs, current revenue 
funds are the major source of capital improvements in the annual 
budget. Financing from current revenue is a pay-as-you go 
policy. Disadvantages occur when expenditures are of compara- 
tively large amounts. This results in unusual fluctuations in 
the tax rate which could be eliminated by distributing the cost 
over several years with long-term bonds. Sometimes user charges, 
such as those for water, are increased so that capital improve- 
ments can be financed from current revenues. 


1. Local Planning Administration , International City Manager's 
Association, p.388 

2. G. S. 160-417 (After July 1, 1973: G c S. 159-90) 







































5 


Municipal Capital Reserve Fund 

This is a municipal savings fund in which monies are 
added from the general fund or from a tax levied for this pur- 
pose. These monies are set aside, by ordinance, for future 
necessary capital expenditures . ^ 

This fund can be used to even out large capital expendi- 
tures which occur infrequently. 


Subdivision Regulations 

Subdivision regulations may require subdividers to 
provide certain public improvements at the time a new subdivi- 
sion is built. Street grading and paving, water mains, storm 
and sanitary sewers, and sidewalks may be required. If suffi- 
cient manpower and equipment are available, the municipality 
itself may install the improvements with the subdivider paying 
the cost. When the subdivider takes the responsibility for 
constructing improvements, the city must inspect the improve- 
ments before approval of the final subdivision plat, or a 
performance bond should be posted to guarantee that all 
improvements will be installed in accordance with specified 
standards , 


State and Federal Aid o r Grants 

State and Federal units of government provide monetary 
aid to cities. The Federal government is making increasing 
amounts of funds available for community facilities. State 
collected funds are used to improve local roads through the 
"Powell Bill". Federal Revenue Sharing funds are available to 
the city for capital improvements in specified areas. 


Private Gifts 


Bequests, grants, donations and private subscriptions 
of land, money, buildings, or equipment are sometimes made to 
cities. Several examples may illustrate possibilities. a local 
manufacturing company may build a facility for the municipality; 
an estate or trust may specify money or land for a public park; 
a service club may raise money to provide facilities for a 
public park or other public use. Care, must be exercised, however. 


1. G, S. 160-425 through 434 (After July L, 1973 i G. S. 159-18 
through 22) 



































































6 


so that a particular gift will not become a burden to the town. 
A building donated for public use may not necessarily be free 
if it is obsolete and in need of remodeling. In the long run, 
it may be cheaper for the town to construct a new building 
designed specifically for an intended and needed use. 


FINANCIAL STATUS OF ALBEMARLE 


Yearly audits for the City of Albemarle for the past ten 
years have been analyzed to determine trends of revenues, oper- 
ating and capital expenditures, appraised valuation, bonding 
capacity, and similar major categories. This effort was under- 
taken so that projections of financial statistics could be 
made and capital improvements could be scheduled in accord with 
the city's ability to pay while at the same time upholding a 
sound financial base and surplus. 

The North Carolina General Statutes authorize municipal- 
ities to issue, general obligation bonds to finance any purpose, 
’’for which it may appropriate money, except for current expenses, 
up to a debt limit of 8% of the total assessed (appraised after 
July 1, 1973) valuation. However, revenue bond debt, general 
obligation debt incurred for enterprises of operation that 
promise to be self-supporting, or those backed by special assess- 
ments are not included within this debt limitation. Therefore, 
it is only seldom that the legal debt limit is of significance. 
Indeed, with these debt limit exemptions, the financial capacity 
to sustain debt may be less than the potential legal capacity. 

This is true with respect to the financial capacity of 
Albemarle. Of the $6,360,000 outstanding bonded debt, $2,655,000 
is included in the. 8% debt limit. This is 41% of the total out- 
standing debt at this time. The remaining 59% of $3,705,000 
(excluded from net debt) are bonds which have been issued for 
water and electric improvements (exempted by State law). 

Based on the 1972-73 projected appraised valuation of 
$93,500,000,2 the 8% statutory debt limit would permit bonding 
to a ceiling of $7,480,000. The amount of debt that now 
qualifies within the 8% ($2,655,000) is 2.8% of the appraised 
valuation and ail bond debt is 6.9% of the appraised value. 


1. N. C. General Statutes 160-378 (After July 1, 1973; G.S. 159-48) 

2. 1972-73 Albemarle Annual Budget estimate 



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/ 


While generally acceptable "rules of thumb’' to use in 
determining the proper relationship of annual debt service 
requirements to total annual revenue are: (11 debt service should 
not exceed 25% of the operating budget 9 and (2) the gross debt 
ratio to full valuation should not exceed 12% for small cities 5 
investment bankers prefer 10% and 8% respectively. 


Table B Existing and Proposed Debt as P e r Cen t o f As sessed V alue 


Year 

Est imated 
Apprai sed 
V a lue*- 

Bonded Debt 
Based on 
Proposed 
I s sues 2a t 
Beginningoof 
Fiscal Year 

Proposed 
Debt as 
Per Cent 
of 

Apprai sed 
Value 

Exi sting 
Bond 
Debt at 
Beginning 
1 of Fiscal 
Year 

Existing 
Debt as 
Per Cent 
of 

Appraised 

Value 

1970-71 

93,975,599 





1971-72 

93,567,178 





1972-73 

98,000,000 



6,360,000 

6.4 

1973-74 

98,500,000 



6,160,000 

6.2 

1974-75 

99 ,000,000 



5,865, 000 

5.9 

1975-76 

99,500,000 

5,981,800 

6.0 

5,470,000 

5.5 

1976-77 

100,000,000 

5,586,800 

5.6 

5,075,000 

5.1 

1977-78 

100,500,000 

5,191,210 

I 

j 

1 

1 

CM i 

LO 

4,705,000 

4.7 


1. Estimated appraised value projected forward using fiscal 1973 
as a base and increasing at a rate of $500,000 a year. Due to 
fluctuation of previous years, projection prepared by computer 
was not considered accurate. 

2. Includes existing debt. 

Source: City Treasurer, City of Albemarle 


In fiscal 1971-72, debt service payments for Albemarle 
amounted to $275,000 (5.6% of the year’s total revenues to be. 
realized by the community). These statements suggest the com- 
munity is in good financial condition. 

Albemarle’s bond rating by Moody Investor’s Service and 
Standard Poors is H A ,? . As the best rating given is "AAA", the 
city has a very good bond rating. Bond ratings should be taken 
seriously. A bond with a particular letter rating sells with a 
yield from one- tenth to one- quarter of one per cent lower than 
a bond with the next lower letter grade. The difference of one- 
quarter of one percent for $1,000,000 in bonds over 20 years 
represents $50,000. One can easily project the potential savings 
in interest costs through improved bond ratings. 3 


3. Bond Ratings, Local Government Commission, Stare of North 
Carolina, p. 3. 





































































































8 


In evaluating Albemarle’s financial capacity to repay 
bonds, two basic factors were examined. First,, was the risk 
that the town may be impaired under depressed business conditions 
to pay on schedule the maturing bond principal and interest. 
Second, was an appraisal of the risk that bond quality may be 
diluted by an inordinate increase in debt. While the first 
factor is related to the impact of general economic conditions 
on the city, the second involves activities within the control 
of the City Council, 

Activities within the control of the City Council and 
investigated by investors and rating agencies include: 

1. Outstanding debt and debt trends 

2. Debt repayment schedules 

3. Overlapping and underlying debt 

4. Sources of revenue for debt service and community 

facilities improvements 

5. Default record 

6. Additional legal debt capacity 

7. Uncollected tax record 

8. Probable future debt requirement to provide adequate 

utilities, educational facilities, transportation 
facilities, recreational and cultural facilities and 
medical facilities. 


RECOMMENDATIONS FOR IMPROVING THE 
FINANCIAL CAPACITY OF ALBEMARLE 

1. Albemarle should continue its policy of financing re- 
occurring improvements through annual revenues and 
improvements with larger costs through bond issues, 
state and federal grants. 

2. Albemarle should establish a capital reserve fund. 
Through this program the community can tax ahead for 
anticipated public improvements and thus eliminate or 
lessen the need for borrowing. This program permits 
the combination plan of reserve fund and borrowing for 
those facilities for which a community cannot acquire 
enough funds strictly through the capital reserve fund 
In this method, the community would tax ahead for the 
needed facility, then finance the remainder from bonds 
spreading the cost toward the future. 















































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10 


In order to insure that the capital reserve funds are 
spent for planned capital improvements, the municipality 
may want to create a reserve fund financed by a regular 
levy or by a stipulated amount set aside from the gen- 
eral fund. Such action should be approved at a local 
referendum, and expenditures from the fund should be 
limited solely to the proposed purpose approved by the 
electorate when the fund was established. Permission 
to use this special fund for any other purpose could be 
given only by another local referendum. Under this 
approach, part of the money can be used to finance im- 
provements on a pay-as-you-go basis for equipment and 
local construction cost, including streets and buildings. 
Another portion of the fund can be used as a down pay- 
ment for major capital expenditures and the balance can 
be used for debt service. 

3. The city should hold a referendum requesting approval 
for the municipality to operate alcoholic beverage con- 
trol stores. Profits from municipally operated ABC 
stores have become a significant source of revenue 
because of the amounts received and because they are 
non-tax revenues. 

4. The city should place a recreation permissive tax vote 
before the electorate requesting a beginning minimum of 
six cents for public parks and recreation purposes. 


IMPROVEMENT PROJECTS 

The projects included in this budget were obtained from 
the comprehensive planning program elements (e.g., Land Develop- 
ment Plan, Community Facilities Study, and Public Improvements 
Program); from improvements suggested by local officials, the 
city manager, and department heads; and from projects proposed 
by the city consulting engineer and other agencies. high 
priority was given for the following reasons; 

1. Necessary replacement of equipment 

2. Projects which would increase efficient operation 

3. Projects needed to serve growth areas 


Assumptions 

The various improvement projects included in this budget 
are needed to keep Albemarle’s facilities and services up to a 
level necessary to serve the present and future demands of the 











































11 


town. Since there are uncertainties when dealing with the 
future, the budget is based on the following assumptions; 


There will be no major changes in the economic condi- 
tion of the town. 

The revenues of the town will increase during the next 
five fiscal years. 

The town's legal debt limit will not decrease. 

The citizens of Albemarle will support bond issues to 
pay for the various improvements. 

The basis of allocating state- col lected , locally 

shared taxes will not materially change during the 
scheduled program. 


The improvement projects are grouped according to town 
departments and are set up so that they may be. incorporated in 
the town's annual operating budget for the fiscal years 1973-74 
through 1977-78. Each project has a brief explanation, estimated 
costs, and the proposed fiscal year in which the project is to 
be funded. 





















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PROJECT ESTIMATES BY DEPARTMENT 

Department & Est. Tot. Fiscal Year 

Project Title Cost 1973-74 1974-75 1975-76 1976-77 1977-78 


14 


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to avoid increasing down time and maintenance costs 



PROJECT ESTIMATES BY DEPARTMENT 

Department & Est. Tot. Fiscal Year 

Project Title Cost 1973-74 1974-75 1975-76 1976-77 1977-78 


15 


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regular replacement of fire trucks (new unit cost approximately $40-45,000). 

Justification: a truck will have to be replaced in Fiscal Year 1976. The creation of this 
fund will allow necessary replacement of fire trucks without requiring the 
cost be provided from one annual budget. Fund started in Fiscal 1972-73 with 
$ 10 , 000 . 
































































































































































16 


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PROJECT ESTIMATES BY DEPARTMENT 

Department & Est. Tot. Fiscal Year 

Project Title Cost 1973-74 1974-75 1975-76 1976-7 7 1977-78' 


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PROJECT ESTIMATES BY DEPARTMENT 

Department & Est. Tot. Fiscal Year 

Project. Title Cost 1973-74 1974-75 1975-76 1976-77 1977-7 8 


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Description: purchase a load packer equipped to empty containers (new unit) 

Justification: present system is unsanitary and inefficient. By purchasing this truck, 

the city will be able to provide those businesses which produce a large volume 
of trash and garbage wastes with a better method of solid waste disposal. 




Description^ provide an annual appropriation for the purchase of transformers for new and 
replacement installations 

Justification; for anticipated system growth and improved service required by greater 


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1 0 o Street f lusher 

a. Description; purchase a second street f lusher (replacement), old vehicle use for sludge 

hauling 

b. Justification; minimize current operating expenses 



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19 . Thoroughfare Plan 

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Department & Est. Tot. Fiscal Year 

Project Title Cost 1973-74 1974-75 1975-76 1976-77 1 977-78 


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N. C. 73 and First Avenue. (Pitometer Sc P&W Survey) 



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a. Description: construct ball field on property available at Amhurst Gardens Development 

b. Justification: ball field needed to serve the neighborhood 

























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35 


ENVIRONMENTAL CONSIDERATIONS 

ALBEMARLE CAPITAL IMPROVEMENTS 
BUDGET --- 1974-1978 


This study is an update of the Capital Improvements 
Budget prepared in 1967. It is a coordinated and comprehensive 
list of improvements needed by the city during the five fiscal 
year period 1974-78. 

Using the Land Development Plan , the Community Facili - 
ties Plan , the Public Improvements Program , and recently iden- 
tified needs as a guide, the list of improvements was compiled 
by interview and then in public meetings. Initial improvement 
lists were submitted by department heads, screened by the City 
Manager, and will be submitted to a joint meeting of the City 
Council and Planning Board for final screening. 

The following effects on the environment are based on 
the assumption that the complete list of improvements proposed 
in this budget will be accomplished. 

A. ADVERSE EFFECTS 

1. Reduction of natural vegetation 

2. Increase in rain water run-off 

3. Increase in wastewater effluent 

B. BENEFICIAL EFFECTS 

1. Preservation of open space 

2. Better utilization of available land 

3. Decrease in ground water pollution 

4. Better traffic circulation, thus minimizing operating time 
of vehicles 

5. Allow the controlled growth of the city; enabling it to better 
serve the people and preserve natural and economic resources 
of the entire community 

Effects of these proposed actions which can not be avoided 
entirely will be the loss of natural vegetation and the 
increase in run-off. 

The alternative to this budget would be the haphazard and 
unplanned purchase of improvements. This could result in 
failure to meet the needs of the people or improper use of 
public funds by impulse or chance purchases. 




' 

. 

■■ ■ 

i 

• ■ ■ - 

' • 

f : 


The budget, if implemented, will encourage a compact 
scheme of development in Albemarle avoiding the low- 
density urban sprawl found in other areas. 

The loss of natural vegetation caused by the construc- 
tion of streets cannot be reversed, but can be helped by 
planned curbside trees properly selected and located. 

All existing state, federal, and county environmental 
controls currently in force will be applicable to the 
implementation of the budget. 

The adoption and implementation of this budget will miti- 
gate the adverse environmental effects of required 
improvements. 

No issues have been raised at the time of the publication 
of the final report (April, 1973). 


SUMMARY 

This budget, if utilized, will be a major tool for ci 
officials in managing the city and meeting its needs in an or 
derly manner. The Capital Improvements Budget should be 
annually updated and advanced one year into the future. This 
process could be most easily accomplished by incorporating it 
into the preparation of the annual operating budget. 


* • 

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. 

! ' 


1 

■ 

■