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HomeMy WebLinkAboutres2019-040R E Whatcom County Agenda Bill Master Report File Number: AB2019-445 File ID: AB2019-445 Version: File Created: 08/26/2019 Entered by: Department: File Type: Assigned to: Council Agenda Date: 09/24/2019 COUNTY COURTHOUSE 311 Grand Avenue, Ste #105 Bellingham, WA 98225-4038 (360) 778-5010 Status: Approved Resolution Requiring a Public Hearing Final Action: 09/24/2019 Enactment #: RES 2019-040 Primary Contact Email: sdra err co.wIiatcom.wa.us <niailto:sdra ei @.co.wliatconi.wa.u-,> TITLE FOR AGENDA ITEM: Resolution in the matter of the Whatcom County Six -Year Transportation Improvement Program (STIP) for the years 2020 through 2025 SUMMARY STATEMENT OR LEGAL NOTICE LANGUAGE: Each year the County is required to update its Six -Year Transportation Improvement Program (STIP), per RCW 35.77.010 and RCW 36.81.121. The STIP includes the capital elements of the first six years of the Fourteen -Year Ferry Program. The STIP is intended as a planning tool for local, state, and federally funded projects and is designed to identify projects for preliminary engineering, right-of-way purchase and/or construction HISTORY OF LEGISLATIVE FILE Date: Acting Body: 09/10/2019 Council 09/24/2019 Council Action: Sent To: INTRODUCED FOR PUBLIC Council HEARING APPROVED Whatcom County Page 1 Printed on 912512019 PROPOSED BY: Public works INTRODUCED RESOLUTION NO. 2019-040 SIX -YEAR TRANSPORTATION IMPROVEMENT PROGRAM FOR THE YEARS 2020 THROUGH 2O25 9/10/2019 WHEREAS, pursuant to RCW 36.81.121, Whatcom County is required to prepare and approve a Six -Year Transportation Improvement Program each year; and WHEREAS, pursuant to RCW 36.54.015, Whatcom County is required to prepare a Fourteen -Year Ferry Capital Program each year; and WHEREAS, the Road Priority Array and the Annual Bridge Report were made available to the legislative authority during the preparation of this program; and WHEREAS, following approval of the Six -Year Transportation Improvement Program, the law requires an annual review of the work accomplished underthe program and a determination of current transportation needs; and WHEREAS, based upon the findings of the annual review, and after a public hearing, a Six -Year Transportation Improvement Program shall be approved; and WHEREAS, pursuant to RCW 36.81.121, the Six -Year Transportation Improvement Program and Fourteen -Year Ferry Capital Program must be consistent with the County comprehensive plan pursuant to RCW 36.70A; and WHEREAS, the Six -Year Transportation Improvement Program attached hereto as Exhibit "A" has been reviewed and determined to be consistent with the County's comprehensive plan; and WHEREAS, the Fourteen -Year Ferry Capital Program attached hereto as Exhibit "B" has been reviewed and determined to be consistent with the County's comprehensive plan; Page 1 NOW, THEREFORE, BE IT RESOLVED by the Whatcom County Council as follows: 1. That the Whatcom County Six -Year Transportation Improvement Program for the years 2020 through 2025, which is attached hereto as Exhibit "A", including the capital elements of the first six -years of the Fourteen -Year Ferry Capital Program, which is attached hereto as Exhibit "B", is hereby approved. 2. That the County Engineer is directed to file a copy of the same with the County Road Administration Board and the State Secretary of Transportation. APPR` W +J i3y 4th day of SeAtember 2019. 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S3003 A 1111n a U. a O f a U f (I-) H1ON311V101 e o snivis (S)3— .N .W AONd WI o 0 s E c 12 u U 'nE' �<msLL tt Hsu ON 103rotld dl SSV1O ONni MEMME MENEM HIM I mum mmmmm I�fY11�B� u ��e I� u K t-i �I u rc u a! n rc o- of n¢ tzi pI n¢ u AI n a z ^f E E e z E ` E o — E E E a c $d E U U E zU o < Z ?� Z C N o Ea U Z p o. oU� Z O u 0 � Z W o c) Q U U !� NV3A 1 H1NOW o ZO 3131dwoo 31Y0 NIA L038 Mn! u a 3dA1 1V1N3W NOUTAN3 l7 F O ry Zs ns o.R m <o We Ww - S n $I$ Ww ary iig v g� <e a a ao g as id r$ o� `p, o Fim mLL 0 3SVHd AS a 1603 1VN303i 3003 ONOd IVN3033 RINVl9 34VHd $ C „i HV--U IUNOII 36VHd 133fONd 53000 A1lllln f!wl H1ON311V1O1 snivis Is13dA1 1N3M3AOHd WI ' f � E O W Pyr _ o E c E <O Y V E — EF t• F `o �v� Yg as �E ;sE _ E� a<m ON MrONd dill SSVIO ONn3 EXHIBIT "B" WHATCOM COUNTY 2020-2033 FOURTEEN -YEAR FERRY CAPITAL PROGRAM Overview This program provides a blueprint for the effective, efficient, and continuing operation of the Whatcom County Ferry System within existing financial constraints. Capital improvements are scheduled based on many years of experience operating and maintaining the system, while complying with applicable regulations. Inevitably, priorities and available funds for the ferry system will change over the fourteen years projected in this program. Therefore, the intention of the program is to be a guide indicating long-range improvements and anticipated revenues and expenditures. Strict adherence is not required. Enacted in 1975, Revised Code of Washington (RCW) 36.54.015 states "The legislative authority of every county operating ferries shall prepare, with the advice and assistance of the county engineer, a fourteen year long range capital improvement plan embracing all major elements of the ferry system. Such plan shall include a listing of each major element of the system showing its estimated current value, its estimated replacement cost, and its amortization period." Table 1: Ferry System Current and Replacement Values — meets applicable requirements, showing the current value, replacement cost, and amortization periods for the vessels and facilities. The current value of the M/V Whatcom Chief is the insured value, the closest approximation of true worth. The facilities' current value is book value; original cost less depreciation plus depreciated improvements. RCW 36.81.121 (1) states "...the legislative authority of each county, after one or more public hearings thereon, shall prepare and adopt a comprehensive transportation program for the ensuing six calendar years .... and for those counties operating ferries shall also include a separate section showing proposed capital expenditures for ferries, docks, and related facilities. Copies of the program shall be filed with the county road administration board and the secretary of transportation not more than thirty days after its adoption by the legislative authority..." Subsection (2) requires expanded information on how a county will spend all its money on the various facets of the transportation program. This RCW Section was enacted in 1961. The capital expenditure portion of Subsection (1) is satisfied by: Table 2: Projected Revenues defines the known and/or anticipated sources of operating and capital project funding for the 14-Year Plan. Table 3: Projected Expenditures includes all other expenditures on the system that meet Subsection (2) requirements. Operational expenditures are delineated between vessel and non -vessel costs. U.S. Coast Guard regulations currently require the ferries to be dry-docked every two years, however to extend the life, improve reliability and protect our capital investment Whatcom County schedules dry-docking every year for its vessel. The landings are inspected regularly as required by the National Bridge -2- Inspection Standards administered through the Washington State Department of Transportation. The inspection report helps identify and schedule major maintenance and replacement of these facilities. This RCW section also provides the reporting requirement and timing of program submission, as well as establishing the annual update requirement. Additionally, the Federal Highway Administration requires all agencies within a Metropolitan Planning Organization to develop and annually update the long range Transportation Improvement Plans and their Biennial Element. Whatcom County updates this 14-Year plan each year and incorporates the results into the Six -Year Transportation Improvement Program. Level -of -Service On July 24, 2018 the Whatcom County Council passed resolution #2018-0026. This resolution established a level of service for the Lummi Island Ferry System. In addition, the resolution enacts an action plan to achieve the recommended improvements including: 1. Vessel A. Balancing capacity against operating costs (fuel, personnel, etc.) to ensure affordable fares over the long run, including needs -based fares, while optimizing vehicle demand, deck space and trip frequency to minimize wait times, the design and construction of a 34 car vessel is added to the 2019-2024 Six -Year Transportation Improvement Program. The timing of the design and construction shall coincide with the next cycle of funding by the County Road Administration Board. B. The design of the vessel shall accommodate all walk-on passengers during typical peak times, accommodate legal loads of vehicles per Washington State Commercial Vehicle Guide and comply with U.S. Coast Guard safety standards and the Americans with Disabilities Act. C. To approach the goal of a carbon neutral vessel and provide flexibility for future electric conversion and reliability, the design of the vessel shall be a hybrid diesel-electric. 2. Terminals A. Design and construction of the marine structure modifications to the Gooseberry Point terminal and Lummi Island terminal to accommodate the new vessel are included in the 2020-2025 Six -Year Transportation Improvement Program. The timing of the design and construction shall coincide with the next cycle of funding by the County Road Administration Board and the construction of the new vessel. B. In addition to the modifications to accommodate a new vessel, improvements to the Lummi Island terminal shall include: reconfigure the queuing lanes, install ADA restrooms, and improve bicycle and pedestrian loading by locating the -3- queuing area as close to the vessel as possible to reduce the time required to load onto the ferry. C. Implement remote ferry queue monitoring. D. Implement self-service ticketing. E. Whatcom County will initiate an intergovernmental agreement with the Lummi Nation to confirm the location of the Gooseberry Point Terminal as shown on the 2015 Lummi Nation TIGER grant application. Upon the finalization of the agreement Whatcom County Public Works shall initiate the environmental review and permitting process for the Gooseberry Point terminal relocation. F. Construction of the new Gooseberry Point terminal relocation is to be accomplished prior to the end of the Uplands Lease Agreement with the Lummi Nation (October 2046). The design shall include dual lane loading and improve bicycle and pedestrian loading by locating the queuing area as close to the vessel as possible to reduce the time required to load onto the ferry. G. Whatcom County shall coordinate the Gooseberry Point terminal relocation with the Lummi Nation's permitting, funding and construction of the future Fisherman's Cove Improvements. H. As property becomes available, Whatcom County shall purchase lands adjacent and near the new location of the Gooseberry Point terminal. The property will be utilized for off-street queuing, parking, and passenger amenities. I. All infrastructures shall be designed to accommodate the 100-year sea level rise prediction by NOAA. 3. Operations A. A Whatcom County ferry district may be created to increase grant opportunities. This district shall be funded by a seasonal surcharge on single cash fares for the capitalization of future vessels. B. The long-term improvements shall be phased overtime to allow for a complete funding portfolio to leverage a variety of funding sources and mechanisms. Minor Maintenance General minor maintenance is continual on the ferry, landings, aprons, approaches, and waiting facilities. The costs and extent of the work is unpredictable, and frequently problems must be repaired immediately upon detection. Routine maintenance such as building painting and roof cleaning is more predictable and scheduled in advance. History of the Ferry System The ferry system is the only public transportation link for the majority of Lummi Island residents and vehicles to the mainland at Gooseberry Point. In the event of an emergency ferry outage or mechanical failure, the County has contracted pedestrian only ferry services while the vessel is being repaired. Following is a brief chronology outlining the history of the Whatcom County Ferry System. GP denotes work occurred at the Gooseberry Point Terminal LI denotes work occurred at the Lummi Island Terminal 1926 Lummi Shore Road from Bellingham was completed and a ferry, the Central, owned by Whatcom County and large enough to hold six small Model-T Fords started making scheduled runs between Lummi Island and Gooseberry Point. 1929 The slightly larger Chief Kwina replaces the Central. 1950 Gooseberry Point terminal built (GP) 1962 The M/V Whatcom Chief begins service 1977 Lummi Island terminal is relocated (LI) 1981 New transfer span and tower superstructure installed (LI) 1982 Approach span trestle refurbished (GP) 1986 Transfer span, tower structures, and marine structures replaced (GP) 1993 South inner and mid -ship timber dolphins replaced/installed (LI) 1999 Emergency South outer dolphin and breakwater repair (LI) 1999 Electrical feeder replacement (GP) 2001 Major maintenance on both terminals including painting, new aprons, electrical work, new hydraulics, tower bolt replacement (LI and GP) 2002 20-Year Plan Phase 1 Process and report completed 2005 South outer timber dolphin replaced with steel structure (LI) Major Status Report on Ferry System 2006 Emergency bearing seat pedestal replacement (LI) Parking lot improvements (LI) Major corrosion repair to vessel hull Completed design package for a 35-car replacement vessel Completed design package for urgent electrical/structural terminal repairs First Rate Increase in 5 years 2007 Bridge bearings replaced (LI) Electrical repairs (LI and GP) 2008 Two North timber dolphins replaced with steel doughnut dolphins designed for larger 35-car ferry boat design (LI) Counterweight sheaves replaced (GP and LI) Rateincrease 2009 Emergency North wingwall replacement (LI) -5- Traffic Gates Installed (LI and GP) Rate adjustment 2010 Emergency South wingwall replacement (LI) 2011 New live load hangers and pins installed (GP) 2013 Steel apron flaps replaced with rubber -coated flaps (LI) Timber wingwalls replaced with steel structures (GP) Terminal remote control system installed, electrical and hydraulic equipment updates (LI) 2014 Terminal remote control system installed (GP) All four timber dolphins replaced with steel structures (GP) 2015 Steel apron flaps replaced with rubber -coated flaps (GP) Emergency temporary repair to outer timber dolphin (LI) Rate adjustment 2017 Electrical system overhaul (GP) 2018 Structural steel repair work including new lifting beam, new live load hangars, and replacement of corroded high -strength bolts and diagonal bracing (GP) Structural steel repair work including replacement of corroded high -strength bolts and diagonal bracing (LI) M EXHIBIT "B" Table 1 IFERRY SYSTEM CURRENT AND REPLACEMENT VALUES - 2018 VESSELS M/V Whatcom Current Statistics Chief LENGTH (ft) 94 BEAM (ft) 44 DISPLACEMENT (tons) 78 YEAR BUILT 1962 CAPACITY — Passengers 100 CAPACITY — Cars 20 CURRENT INSURED VALUE - 2017 $890,000 AL CURRENT VALUE - 2018(') RenlacemPnt Statistics YEAR 2024 CAPACITY -- Passengers 150 CAPACITY — Cars 34 REPLACEMENT VALUE $15.000.000 TOTAL - REPLACEMENT VALUE FACILITIES LOCATION Lummi Island Landing Transfer Span and Dock Dolphins/W ingwall/Breakwater Upland Facilities :Subtotal - Lummi Island Landing Gooseberry Point Landing Transfer Span and Dock Dolphins/W ingwall�3) Upland Facilities Subtotal - Gooseberry Point Landing AL FACILITIES VALUE AL VESSEL & FACILITIES VALUE $890,000 SCHEDULED REPLACEMENT ESTIMATED AMORTIZATION /MODIFICATION CURRENT BOOK REPLACEMENT YEAR BUILT PERIOD YEAR VALUE(4) COST 2018 $'s (2) 1982 2022 2040 $421,345 $10,000,000 1978 r 2018 2024 $1,222,929 $7,000,000 1978 2018 2024 $60,000 $4,000,000 $1,704,274 $21,000,000 1987 2027 1 2024-2046 $552,345 $23,500,000 2013, 2014 2053, 2054 �_2024-2046 $2,945,405 $3,000,000 $0 $9, 500, 000 $3,497,7501 $36,000,000 $5,202,02411 $57,000,000 $6,092,024 $72,000,000 Current Insured Value czi Per 2018 LOS Alternatives Analysis by KPFF Consulting [3Y Replacement requires relocation. A phased approach to relocation will include modifications to existing facilities prior to completion of the new facility. t``y Estimated using a 40-year life and straight-line depreciation (including depreciated improvements) Table 2 Lummi Island Ferry 14-Year Capital Program All $ in 000's Revenues 2020-2026 ,Category 2020 2021 2022 2023 2024 2025 2026 Punch Card Fares 3 $1,289 51,290 $1,323 $1,358 $1,393 $1,428 $1,465 Cash Fares 4 322 322 331 339 348 357 366 Memo 55% of Operating Cost)II 1,611 1,612 1,654 1,697 1,741 1,786 1,832 MVFT Deficit Subsidy338 338 338 338 338 338 338 County Road Fund Operating Subsidy 1,424 1,425 1,458 1,492 1,526 1.562 1,598 County Road Fund Capital Subsidy 1,992 2.330 50 50 - - - Total Revenues 5,365 5,705 3,500 3,577 3,605 3,685 3,768 Total Expenditures 2) 5,156 5,497 3,290 3,365 3,392 3,471 3,551 Net Unfunded (209) (209) 210 212) (213) 215) (216) Lummi Island Ferry 14-Year Capital Program All $ in 000's Revenues 2027-2033 Category 2027 2028 2029 2030 2031 2032 2033 Punch Card Fares $1,503 $1,541 $1,582 $1,621 $1,664 $1,711 $1,754 Cash Fares 376 385 395 405 416 428 439 Memo 55%of Operating Cost)(1) 1,879 1,926 1,977 1 2,027 2,080 2,139 1 2,193 MVFT Defi ci t Su bs i dy338 338 338 338 338 338 338 -County Road Fund Operating Subsid 1,635 1.,673 1,713 1,752 1,794 1,841 1,883 Coun Road Fund Capital Subsidy- - - - - - Total Revenues 3,852 3,938 4,028 4,117 4,212 4.318 4,414 'Total Expenditures 2 3,634 3,718 3,807 3,894 3,987 4,091 1 4,185 Net Unfunded (5) 218) 220 221) 223 225 227 229 Note 1: After Subtracting the MVFT Deficit Subsidy. Budgeted for 57%fare recovery based on historical results. Note 2: As Shown On Table 2, including capital expenditures. Note 3: Equal to 80% of Fares Note 4: Equa I to 20% of Fares Note 5: Unfunded ferry capital is generally covered using road fund revenue Table 3 Lummi Island Ferry 14-Year Capital Program All in 000's Table 2 Expenditures 2020-2026 Page 1 Category 2020 1 2021 2022 2023 2024 2025 2026 Operating Expenses Ve sse I Operations Personnel 1,470 1,499 1,529 1,560 1,591 1,623 1,655 Fuel & Operating Supplies 700 721 743 765 788 811 836 Insurance 50 52 53 55 56 1 58 60 Other Operating Expenses 100 104 108 112 117 122 127 Total Vessel Operations 2,3201 2,376 2,433 2,492 2,552 2,614 2,678 Other Operations Administration 310 316 323 329 336 342 349 Parking Lots Lummi Island 5 5 5 5 51 6 6 Gooseberry Pt. 7 7 7 7 8 8 8 Staging Areas Lummi Island 8 8 8 9 9 9 10 Gooseberry Pt. 4 4 4 4 5 5 5 Docks Lummi Island 166 70 71 73 741 76 77 Gooseberry Pt. 350 380 388 395 403 411 420 Total Operating Expenses 3,1641 3,167 3,240 3,315 3,392 3,471 3,551 Capital Expenditures Replacement of Whatcom Chief & Terminal Mods 400 330 - - Lummi Island Terminal Preservation 825 - Gooseberry Pt Terminal Preservation 50 - - - Lummi Island Breakwater Replacement 125 1,950 - - - Relocation of Gooseberry Terminal 50 50 50 50 Gooseberry Point Docks 390 - - - Staging 9 - - - Parking 5 - - - - - Lummi Island Docks 100 Staging 28 - Parking 10 Total Capital Program Costs 1,992 2,330 50 50 - - - Total Costs 5,156 5,497 3, 290 3,365 3,392 3,471 3,551 MIR Lummi Island Ferry 14-Year Capital Program All in 000's Table 2 Expenditures 2027-2033 Page 2 Category 2027 2028 2029 2030 2031 1 2032 2033 Operating Expenses Ve sse I Operations Personnel 1,689 1,722 1,757 1,792 1,8281 1,864 1,902 Fuel & Operating Supplies 861 887 913 941 969 998 1,028 Insurance 61 631 65 67 69 71 73 Other Operating Expenses 132 137 142 148 154 159 163 Total Vessel Operations 2,743 2,809 2,878 2,948 3,020 3,092 3,166 Other Operations Administration 356 363 370 378 3851 393 401 Parking Lots Lummi Island 6 6 6 6 6 6 7 Gooseberry Pt. 8 8 9 9 9 9 10 Staging Areas Lummi Island 10 10 10 11 11 11 12 Gooseberry Pt. 5 5 5 5 61 18 19 Docks Lummi Island 791 80 82 84 85 87 89 Gooseberry Pt. 428 437 445 454 463 472 482 Total Operating Expenses 3,634 3,718 3,807 3,894 3,987 4,091 4,185 Capital Expenditures Replacement of Whatcom Chief & Terminal Mods - - - - - Lummi Island Terminal Preservation - - - - Gooseberry Pt Terminal Preservation - - - - Lummi Island Breakwater Replacement - - - Relocation of Gooseberry Terminal - - - - - Gooseberry Point Docks - - - - Staging - - - - - - - Parking - - - Lummi Island Docks - - - - - Staging - - - - - - Parking - - - - - Total Capital Program Costs - - - - - - - Tota I Costs 3,634 3,718 3,807 3,894 3, 987 4, 091 4,185 -10-