HomeMy WebLinkAboutCOUNCIL - AGENDA ITEM - 04/01/2008 - RESOLUTION 2008- 035 AFFIRMING THE ADOPTION OF THE ITEM NUMBER: 17
AGENDA ITEM SUMMARY DATE: April 1, 2008
FORT COLLINS CITY COUNCIL STAFF: Bob Smith
SUBJECT
Resolution 2008-035 Affirming the Adoption ofthe Update to the Cooper Slough Basin Stormwater
Master Plan.
RECOMMENDATION
Staff recommends approval of the Resolution.
The Water Board and the Natural Resources Advisory Board recommend approval.
FINANCIAL IMPACT
The capital cost of all identified improvements in the Master Plan update is $11.8 million.
Approximately $5.9 million of that will be built in conjunction with and paid for by development.
The remaining$5.9 million will be paid by the City Stormwater Fund with revenue from stormwater
rates and development fees. This will not require an increase in rates or significantly affect the 30-
year stormwater program build out.
EXECUTIVE SUMMARY
In 2004, Council adopted the City's Stormwater Master Plan. Since that time, a more detailed
analysis has been completed for the portion of the Cooper Slough Basin above the Larimer-Weld
Canal (north of Vine Drive). This information provides guidance for storm drainage capital
improvements and requirements for developing properties in this part of the basin. City Code allows
for stormwater master plans to be updated by the Utilities General Manager. The Utilities General
Manager approved the Cooper Slough Master Plan update known as Upper Cooper Slough in
August 2007. A major property owner in the basin, Anheuser-Busch Inc, has requested City
Council affirm the General Manager's approval.
BACKGROUND
The City's current Stormwater Master Plan was adopted in 2004. The Master Plan analyzed each
stormwater basin's flooding and water quality problems and provides general direction for
stormwater management. The Master Plan includes:
April 1, 2008 -2- Item No. 17
1. Recommendations for cost effective projects to reduce flood damages to homes and
businesses, the potential for the loss of life, as well as, reducing the over topping of roads,
railroads and irrigation ditches.
2. Provides guidance for new development.
3. Provides guidance for enhancement to the riparian habitat along stream corridors to improve
water quality.
4. Provides guidance for stabilizing streams where necessary.
When the City's Stormwater Master Plan was adopted in 2004,the entire Cooper Slough Basin was
analyzed; however, detailed information to guide future activities in the basin was only provided
below the Larimer-Weld Canal (Lower Cooper Slough). The portion of the Master Plan related to
Upper Cooper Slough (above the Larimer-Weld Canal) still needed to be developed. The update
has now been completed and an executive summary of that Master Plan is attached.
Elements of the Update
The upper portion of Cooper Slough basin is sandwiched between the Dry Creek and Boxelder
Creek basins and encompasses about 26 square miles. This area is largely outside of the City's
Growth Management Area and is farmland with some urbanization taking place.
The major elements of the update include a regional detention pond north of the Larimer-Weld
Irrigation Canal; an outfall for the portion of the basin west of the No. 8 Outlet Irrigation Ditch;
safety, aesthetic and water quality improvements to the No. 8 Outlet Irrigation Ditch; water
treatment best management practices to protect the Cooper Slough below the Larimer-Weld Canal;
further study to address the stability and lack of vegetative diversity of the lower slough;and various
road, irrigation ditch, and railroad crossings.
The No. 8 Outlet Irrigation Ditch flows north to south on the west side of the basin. It carries
an• es a large
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amount of storm runoff and as well its normal irrigation flows. The existing ditch is characterized
by unsafe, steep,unsightly and unstable banks,has limited habitat value and contributes negatively
to water quality. A plan was developed to improve its safety, expand its habitat value and decrease
its impacts on water quality.
Impacts on the Lower Cooper Slough
Cooper Slough,now located in the County and in the lower portion of the basin,is a valuable natural
resource for the area. Cooper Slough has the potential to be impacted by future urbanization. An
assessment was performed on Cooper Slough by a consultant specializing in wildlife habitat
assessments, to define what the implications might be of future urbanization in the basin.
In regard to groundwater flows in the Slough, the report stated as increased urbanization occurs,
there will be an increase in groundwater flows. The Slough would remain more in a"warm-water'
condition and potentially an increase in more migratory and winter use by waterfowl. However,this
increase would be limited due to the poor structural diversity in vegetation along the Slough and
narrowness of the water channel.
April 1, 2008 -3- Item No. 17
The report did raise a concern that increased surface flows along the Slough could have an effect
on the Slough. The report identified the importance of doing Best Management Practices(BMPs),
such as cleaning up the surface flows before they reach the Slough or reducing the amount of surface
flows would reduce the impact significantly. The design of the large detention ponds above the
Larimer-Weld Canal will play an important role in protecting the Slough by the incorporation of
water quality treatment in their design. Also, with adoption of the Master Plan, new development
in the basin would have to provide on-site BMPs when they develop. The report also recommends
that the City continue to study the Slough to address its stability and identify measures to increase
the diversity of its vegetation and to continue to monitor the water quality in the Slough.
Adoption by the Utilities General Manager
Section 26-543 of the City Code allows for updates or enhancements to current master plans to be
approved by the Utilities General Manager as long as the updates are for the sole purpose of
enhancing the existing master plan and does not diminish the general purpose or specific objectives
of the adopted master plan and does not diminish the ability of the plan to address the disposition
of stormwater. The Utilities General Manager approved the update to the Cooper Slough Basin in
August 2007. Since that time,a major land owner in the basin,Anheuser-Busch Inc,has asked City
Council to affirm the General Manager's adoption of the Master Plan update.
Public Outreach
The development of the update to the Cooper Slough Master Plan was a collaborative effort between
the City and Anheuser-Busch Inc. City staff performed one-on-one public outreach with the other
property owners in the area,primarily large-tract property owners. The update was reviewed by the
City's Water Board,Natural Resources Advisory Board and Planning and Zoning Board. Both the
Water Board and Natural Resources Advisory Board took formal action and adopted motions
recommending adoption of the update. The Planning and Zoning Board discussed the matter at a
work session and did not take formal action on the Master Plan update.
ATTACHMENTS
I. Upper Cooper Slough Stormwater Master Plan Executive Summary
2. Water Recommendation and Minutes.
3. Natural Resources Advisory Board Recommendation and Minutes.
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City- of Fort Collins
LTpper Cooper Slouch
Executive SunlnlaioN N
.June 1. 006
Executive Summary
About the Basin
A tributary to Boxelder Creek and Lower Cooper Slough, the Upper Cooper Slough Basin
encompasses 26 square miles and extends north from the Larimer and Weld Canal and west of
Interstate 25 . See attached figure entitled "Cooper Slough Basin". The majority of the basin is
currently farmland with the exception of the Anheuser-Busch brewery site. However, the
southern portion of the basin within the Fort Collins Growth Management Area is experiencing
rapid urbanization.
Stormwater within this basin flows generally from north to south, with runoff ultimately being
captured by the Larimer and Weld Canal . During large storm events, runoff spills into the
Cooper Slough from the Larimer and Weld Canal . See attached figure entitled "Upper Cooper
Slough Study Area, Existing Drainage Patterns".
Located on the west side of the basin, the No . 8 Outlet Canal runs north to south and is a primary
conveyance of stormwater to the Larimer and Weld Canal. When the capacity of the canal is
exceeded, stormwater spills out of the canal to the southeast combining with runoff from the
north, ultimately overtopping the Colorado and Southern Railroad and into the Larimer and Weld
Canal.
The basin hydrology of the basin was studied as part of the Boxelder Creek / Cooper Slough
watershed by the City of Fort Collins and Larimer County in 1981 and 2002 . In addition, a
drainage master plan was prepared for the portion of the basin owned by Anheuser-Busch, Inc in
1984 in conjunction with development of the brewery site. The 2003 update to the City ' s
stormwater master plans adopted improvements for the Lower Cooper Slough Basin and
identified the need for the Upper Cooper Slough as an area to be further studied.
Basin Problems
The master plan identified flood hazards related to the overtopping of roadways and the
Colorado and Southern Railroad as well as spills out of the No . 8 Outlet Canal and the Larimer
and Weld Canal. During a 100-year storm, the railroad embankment impounds 250 ac-ft of
stormwater and overtops by 900 cfs. If nothing is done to address the overtopping of the
embankment, there is the potential the embankment could fail and cause damage downstream.
While overtopping of roadways and railroads is a significant hazard, the expected new
development in the area between County Road 56 and the Larimer and Weld Canal has also
raised the need to develop a stormwater master plan for the basin. Currently, the basin has no
dedicated outfall channel that would convey runoff from developed lands in the basin to existing
waterways . Also, the No . 8 Outlet Canal company has expressed concerns about allowing new
development to use the canal for stormwater conveyance without a coordinated plan from the
City. Furthermore, no defined channel exists to convey drainage from the north of County Road
56 through the future developments .
Cooper Slough Basin
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Recommended Solutions
The recommended selected plan of improvements was developed to provide cost-effective
solutions to mitigate existing damages and to mitigate the potential for future damages caused by
new development. All projects in the basin were sized assuming developed land use within the
Fort Collins Growth Management Area. See attached figure entitled "Upper Cooper Slough
Study Area, Selected Plan Components". The improvements include :
• North Poudre #6 spillway modification;
• Sod Farm detention storage ;
• No. 8 Outlet Canal improvements;
• Colorado and Southern Railroad diversion structure;
• Anheuser-Busch regional detention pond modification;
• Black Hollow outfall channel and Barker detention pond;
• Culverts at Vine Drive and Cooper Slough;
• Cooper Slough Bed / Bank improvements .
In coordination with project on Cooper Slough at State Highway 14, these projects would
prevent road and railroad overtopping, eliminate spills from the irrigation canals, provide outfalls
to Cooper Slough and Dry Creek, limit the impact of off-site runoff, and mitigate the potential
for future flood hazards from new development. The total cost of the improvements is $ 11 . 8
million.
Stream Stability and Habitat
The selected plan of improvements proposes to convey runoff under the Larimer and Weld Canal
directly to Cooper Slough. The additional volume of runoff into the slough could degrade the
stability and habitat quality of the slough. Therefore, a series of stabilization and enhancement
measures to Cooper Slough are included to mitigate the change in hydrology.
New Development Guidance
The implementation of the selected plan of improvements is critical to help mitigate the potential
for flood damage related to new development. In addition to the improvements, new
development is required to detain developed runoff at the 2-year historic release rate. This
detention requirement does not apply to land owned by Anheuser-Busch because of the Master
Agreement between the City and Anheuser-Busch.
Upper Cooper Slough Study Area
Selected Plan Components
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ATTACHMENT
Utilities
Water Board
City of Fort Collins MEMORANDUM
Date: March 19, 2008
To: Mayor and City Council
Darin Atteberry, City Manager
From: Doug Yadon, Water Board ChairmaA
Re: Upper Cooper Slough Stormwater Master Plan—An Update to the Cooper Slough
Basin Master Plan
At the Water Board's February 28`" meeting, the Board unanimously passed a motion recommending
City Council support the adoption of the "Upper Cooper Slough Stormwater Master Plan" which
provides an update to the current Cooper Slough Master Plan. Along with this recommendation, the
Board would like to provide the following comment.
We will likely never know whether Upper Cooper Slough was once a high quality floodplain; the
landscape has been extensively altered through intensive agricultural practices. In contrast, Lower
Cooper Slough remains, if not pristine, a unique and moderately high quality wetland in our otherwise
and environment. Continuous warm groundwater flows through the slough have made it a magnet for
a variety of waterfowl and other aquatic species throughout the year. Given the foreseeable
development in the Upper Cooper Slough Urban Growth Area, engineering of its stormwater system
needs to progress carefully to protect the distinctive natural values in Lower Cooper Slough.
The consultant hired by the City has stated that converting existing farmland runoff to urban runoff,
with the concomitant increase in impervious area, will likely increase the frequency, volume and
temperature of the discharge into Lower Cooper Slough. Further, they state that even with properly
sized residential or industrial detention ponds, any stormwater runoff is likely to yield additional
sediment, nitrates and phosphorus, petroleum products, metals, fecal coliform bacteria, oils, soaps,
detergents and other products that accompany extensive land use conversions of this type.
Because Upper Cooper Slough does not present a clear and present danger in terms of stormwater risks
(as for example the Canal Importation Basin), the Water Board urges Council to direct Utility and
Natural Resources staff to thoroughly investigate and implement best management practices that are
the most appropriate to cost-effectively prevent any degradation to the habitat and water quality values
in Lower Cooper Slough. Proper mitigation measures will need to be thoughtfully considered,
diligently engineered, and vigilantly monitored. Fixing any problems will cost far more than doing it
right the first time.
Please feel free to contact me regarding the Board's recommendation on this matter.
700 Wood St. • P.O. Box 580 • Fort Collins, CO 80522-0580 • (970) 221-6700 • FAX (970) 221-6619 • TDD (970) 224-6003
DRAFT
Excerpt from Water Board Meeting Minutes of February 28, 2008
Upper Cooper Slouch Stormwater Master Plan Update - Bob Smith, Water Planning and
Development Manager
Chairperson Yadon stated that staff had asked the Water Board to provide a recommendation to
City Council regarding the affirmation of the Stormwater Master Plan Update.
Board Member Johannes Gessler motioned for the Water Board to endorse the Stormwater
Master Plan Update as presented on February 28, 2008. Board Member Reagan Waskom
seconded the motion and it passed unanimously.
Vice Chairperson Gina Janett asked if the Water Board could convey the information from the
discussion regarding the importance of ensuring development would not damage the Lower
Cooper Slough. Chairperson Yadon asked the maker of the motion or the seconder to incorporate
that language into the motion. Chairperson Yadon asked if Board Member John Bartholow
would be willing to draft the memo from the Water Board to Council and send it by email to the
Water Board for approval. Board Member Bartholow agreed to do so.
ATTACHMENT
MEMORANDUM
FROM THE CITY OF FORT COLLINS
NATURAL RESOURCES ADVISORY BOARD
DATE: May 28, 2007
TO: Mayor and City Council Members
FROM: Ryan M. Staychock on behalf of the Natural Resources Advisory Board
SUBJECT: Recommendation pertaining to the Upper Cooper Slough Draft Executive
Summary, June 2006
The NRAB recommends that City Council support an "Upper Cooper Slough master
plan"that maintains or enhances the Upper Cooper Slough basin in accordance with the
most recent version of City Plan.
Please feel free to contact me regarding the NRAB's recommendation on this issue.
Respectfully Submitted,
Ryan M. Staychock, Chair
Natural Resources Advisory Board
970-481-1801
ryanstaychock@hotmail.com
cc: Darin Atteberry, City Manager
John Stokes, Staff Liaison
Natural Resources Advisory Board
April 18,2007
Page 3 of 5
• Foll 'ng further discussion, Staychock asked Stokes if he sees any critical habitat areas that
are b removed from the floodplain.
• Stokes 'd he is not aware of any. Most of that land is farmland right now. He said the City
owns the d and have conservation easements on some. The idea was to try and preserve a
modest co Wor. T'rmnath has been anxious to get that corridor out of the floodP lai
regardless o what the City does. They have proposed a separate project to build annel
that intercep a flow just west of Natural Resources parcel to divert to the
Discussion follow ut financing the project. A lot of the benefits are ou de the UGA so it
would make sense th specific property owners pay a larger share than g property owners.
A question was asked out the proposed Storm Drainage Authority. i
Smith explained that a S Drainage Authority would be formed an 1GA that would direct
payment amounts. That an ority would actually build and in ' n it. He replied that elected
officials would vote on this. a commented again that they h barely scratched the surface on
the financing issue and they not scheduled for Council ime soon. He asked what the
Board thinks about the master itself.
• Pruessner said she liked that th are including s, etc.
• Staychock pointed out an item in a plan that ed confusing: page 17, Table#s-3,
Scenario 2: "Fees assessed based all pare in the Boxelder Basin". The body of the
document reads "fees being assess n p is actually removed from the flood plain". He
felt that didn't match the verbiage in le.
• Smith suggested that the Board make tion and he would take it to Council.
The Board listed their concerns: N Reso processes, keeping Boxelder Creek in its
natural condition,trails, and includ uffer stand
• Smith said he would use th ords"maintain an r enhance Boxelder watershed.
• Colton commented that y can't be too specific out knowing what's in City plan: They
had talked about a bu between communities. He ted that he does share concerns on
financing plans but ds like that is coming later.
• Pies man sugg at the Board take some time to sett n the language and vote at the
next meeting.
• Stokes read policies from City Plan that addressed the ard's concerns.
• Knowlton d she would like to include what Stokes had r But maybe they should not
reference ity plan as Timnath might be opposed.
• Smith with Knowlton's suggestion that City Plan not be re cod. He said if the
Bo ares their motion next month,he could take it to the oth 'sdictions.
• St hock said he will draft the Board's recommendation.
Upper Cooper Slough
Smith said the master plan was adopted in 2004 which adopted improvements for Lower Cooper
Slough from Vine Drive south. He said the area is predominately undeveloped. The ditch
company has asked for a master plan to plan for future urbanization. Smith continued stating
Natural Resources Advisory Board
April 18,2007
Page 4of5
that this is different from the Boxelder Plan because there aren't any structures. The original
master plan did not look at Lower Cooper Slough. The ditch companies would like to keep the
—� urbanized flows in the ditch but the groundwater in Cooper Slough is still maintained. There are
some areas that need stabilization. He said this would be financed primarily by new
development. This area is all in the City so the County is not really involved.
Following a brief discussion,Piesman suggested they include support of Cooper Slough when
the Board drafts a memo regarding the Boxelder Plan.
Coun Gosl Recommendations
• Stay ck commented that it might be a good opportunity to get some ideas to Council as
part o it retreat with new Council members. He said he thought Council would set two
year polic oals. He commented that Apt had sent an email with points. He said he
would draft ocument to present to council with ideas/recomm ations from the Board.
• Colton said he with Apt that they need to be more a ive on policies. He said the
Board should en age Council to be more aggressive on able energy policies. At
least as aggressive a state is.
• Knowlton asked if they uld include a specific goal o olid Waste.
• Peterson said he would lik see more aggressive ons to achieve current objectives for
solid waste diversion in the of Fort Collins.
• Piesman said he agreed with Ap last commen on Glade Reservoir. He would like to
suggest the Board recommend that 'ty Coun develop a strategy to maintain or enhance
stream flows for the Poudre through C ins in light of developing reservoir projects (i.e.
Glade and Halligan).
• Piesman commented that Apt had a lot o TA
• Knowlton suggested they recommen at Co '1 support RTA alternatives that maximize
transit and projects that improve ai uality.
Petterson made the following mot'
Move that we draft a memo, council with the Boards recomm ations.
Liz seconded the motto hich was unanimously approved.
Climate Task Fo Selection of NRAB Representative
Staychock and P sner expressed an interest in representing the Board on the Climate Task
Force.
Knowlton nominated Pruessner.
Rob seconded the nomination which was unanimous.
MINUTES
CITY OF FORT COLLINS
NATURAL RESOURCES ADVISORY BOARD
Regular Meeting
200 W.Mountain,Suite A
May 16,2007
For Reference: Ryan Staychock,NRAB Chair - 481-1801
Ben Manvel, Council Liaison - 217-1932
John Stokes, Staff Liaison - 221-6263
Board Members Present
Alan Apt, Glen Colton,Amy Dean,Rob Petterson,Joseph Piesman,Liz Pruessner, Clint
Skutchan,Ryan Staychock
Board Members Absent
Linda Knowlton
Staff Present
Natural Resources Dent: John Stokes,Judi Vos
Storm Water—Bob Smith
Guests
None present.
The meeting was called to order at 6:04 p.m.
! Review and Approval of Minutes:
Liz moved to approve the minutes for April 18,2007.
Colton seconded the motion which passed unanimously.
i
Boxelder/Cooper Slough Master Plan—Recommendations
• Staychock asked if there were comments on the draft memorandum he had prepared for the
Board's consideration.
• Colton commented that it looked good. He would like to see it reference the sections in the
City Plan.
• Pruessner reminded the Board of Knowlton's suggestion in April that the memo should not
reference City Plan.
• Smith agreed that it may not be necessary.
• Colton said he wants to make sure Council recognizes the items cited are in the City Plan.
He feels it is important to have substance on how the Board came up with the information.
• Apt agreed.
• Ryan said to further address Knowlton's concerns; the Board needs to make two
recommendations. The first would be that Council adopt the Boxelder plan and a similar
motion related to Cooper Slough.
I
Natural Resources Advisory Board
May 16, 2007
Page 2 of 6
Colton moved to adopt the draft and reference the sections that relate to Boxelder
specifically.
Staychock agreed to reference the sections cited from the City Plan.
Alan seconded the motion which was unanimous.
Apt moved that the Natural Resources Advisory Board recommend to Council to support the
Upper Cooper Slough executive summary that follows in accordance with the City of Fort
Collin's City Plan.
Dean seconded the motion which was unanimously approved.
roved.
Na al Resources General Fund Budget—John Stokes
Stokes plained that the Department is just beginning to draft offers for the budgeting for
outcome FO)process. Once the offers are completed they will be pr ted to the
Environm Health results team. He stated ther/en6 ntly 6.05 F s working on air
quality, solid to reduction, and greenhouse gas with 5.0 Es funded in general
fund and 1 FT ded by the Utility program(Ka , Cli a Wise program).
The department pro s to continue with all the cr s and is asking for additional
staff. The Natural Res ces department general fig hit(about 30%)several years
ago. Going forward the artment would like to ft staff and bring in an additional
1.5 positions in staff•• .75—Climatewise, '/z h, '/. PR/Marketi• .5—Sustainability Actio oup-Need tha help achieve sustainability goals
and help the program to be ccessfi
• .25—Solid Waste- bring Go back to full-time—They are not currently staffed at
a level to keep progress with go
Stokes said if staffing stays the same, lr to Wise program would have to stop accepting
new members. He explained that the itions t have to go through the Service Area
director. If approved, the offers ar resented to sults team who gets an allocation from
the Budget Lead team. The dep ent will revise esubmit the offers based on
comments/suggestions from esults team. If the off make it over the line,they go to the
Budget Lead team and then Council.
• Petterson asked when would be appropriate for the Bo offer their input.
• Stokes replied that uld be before the second round which d be June/July.
• Petterson said h ould be inclined to do it earlier.
• Stokes said it uld be appropriate for the Board to send a memo to cil with
recommen ons and copy the chairman of the results team.
Discussio llowed about the types of recommendations that would be appropriate to come
from the Board and the offers related to program dollars.
RESOLUTION 2008-035
OF THE COUNCIL OF THE CITY OF FORT COLLINS
AFFIRMING THE ADOPTION OF THE UPDATE TO
THE COOPER SLOUGH BASIN STORMWATER MASTER PLAN
WHEREAS, in 2004, the City Council adopted Ordinance No. 057, 2004, adopting the
Cooper Slough Basin Stormwater Master Plan; and
WHEREAS,City Stormwater staffhas since worked with outside consultants and with major
property owners in the portion of the Cooper Slough Basin north of Vine Drive to delineate and
analyze in more detail the storm drainage patterns and required capital improvements in that"upper"
portion of the Basin; and
WHEREAS, the Utilities Executive Director approved the Upper Cooper Slough Basin
Selected Plan of Improvements, dated June 6, 2006, and prepared by Anderson Consulting
Engineers, Inc., in August 2007, as an update to the Cooper Slough Basin Stormwater Master Plan
(the"Update"),pursuant to the Director's authority to update existing plans under City Code Section
26-543; and
WHEREAS,staff is requesting that the City Council affirm the adoption of the Update to the
Master Plan; and
WHEREAS, the Update has been presented to and considered by the City's Water Board,
Natural Resources Advisory Board, and Planning and Zoning Board; and
WHEREAS,the Water Board and the Natural Resources Advisory Board each took formal
action to recommend that the City Council affirm the Update,while the Planning and Zoning Board
reviewed the Update at a work session and did not take formal action to make a recommendation;
and
WHEREAS, City staff has completed one-on-one public outreach with property owners in
the area of the Update, including all large-tract property owners.
NOW, THEREFORE, BE IT RESOLVED BY THE COUNCIL OF THE CITY OF FORT
COLLINS that the City Council hereby affirms the adoption by the Utilities Executive Director of
the Upper Cooper Slough Basin Selected Plan of Improvements as an update to the Cooper Slough
Basin Stormwater Master Plan.
Passed and adopted at a regular meeting of the Council of the City of Fort Collins this 1 st day
of April A.D. 2008.
Mayor
ATTEST:
City Clerk