HomeMy WebLinkAboutres2020-034�C.0m Co`
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File ID:
AB2020-363
File Created:
09/02/2020
Department:
Public Works
Department
Assigned to:
Council
Agenda Date:
09/29/2020
Whatcom County
Agenda Bill Master Report
File Number: AB2020-363
COUNTY COURTHOUSE
311 Grand Avenue, Ste #105
Bellingham, WA 98225-4038
(360) 778-5010
Version: 1 Status: Approved
Entered by: SMock@co.whatcom.wa.us
File Type: Resolution Requiring a Public Hearing
Final Action: 09/29/2020
Enactment #: RES 2020-034
Primary Contact Email: sdraperlcr co.whatcom.wa.us <inaiIto: sdraper a, co. whatcom.wa.us>
TITLE FOR AGENDA ITEM:
Resolution in the matter of the Whatcom County Six -Year Transportation Improvement Program
(STIP) for the years of 2021 through 2026
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:
Action: Sent To:
09/15/2020 Council
INTRODUCED FOR PUBLIC Council
HEARING
Aye:
6 Browne, Buchanan, Byrd, Donovan, Frazey, and Kershner
Nay:
1 Elenbaas
Absent:
0
09/29/2020 Council
APPROVED AS AMENDED
Aye:
6 Browne, Byrd, Donovan, Frazey, Elenbaas, and Kershner
Nay:
0
Absent:
1 Buchanan
Whatcom County
Pagel Printed on 913012020
Agenda Bill Master Report Continued (AB2020-363)
Attachments: Memo-STIP.pdf, STIP.pdf
Whatcom County Page 2 Printed on 913012020
PROPOSED BY:
INTRODUCED: 9/l S/2020
RESOLUTION NO. 2020-034
SIX -YEAR TRANSPORTATION IMPROVEMENT PROGRAM
FOR THE YEARS 2021 THROUGH 2O26
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
2021 through 2026, 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.
NRRRGVUD�th�is 29th day of septe
F, a?
0
o o HF
Darna Brews -D7 Wi�,,,,Olerk of the Council
APPROV ,p AS TO FORM:
tuber , 2020.
WHATCOM COUNTY COUNCIL
WHATCOM COUNTY, WASHINGTON
B rry Buchanan, Chair of the Council
Chris Quinn Approved via Email / LB
Chris Quinn, Senior Civil Deputy Prosecuting Attorney
Page 2
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EXHIBIT "B"
WHATCOM COUNTY
2021-2034 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 program intends 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 impmxements.
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 include all other expenditures on the system that meet
Subsection (2) requirements. Operational expenditures are delineated between the
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 July24, 2018, the Whatcom County Council passed resolution #2018-026. This
resolution established a level of service for the Lummi Island Ferry System. Also, 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 of a 34 car vessel is in the 2021-2026 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. The design of the marine structure modifications to the Gooseberry Point
terminal and Lummi Island terminal to accommodate the new vessel are
included in the 2021-2026 Six -Year Transportation Improvement Program
and take into consideration the plan, listed 2E-2H below, to move the
Gooseberry terminal at a future date. 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 queuing area as close to the vessel as possible to
reduce the time required to load onto the ferry.
-3-
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 before 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 over time 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 Mod el-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 ftaced/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 Oii the Ferry ry ,Jiystem
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)
Rate increase
2009 Emergency North wingwall replacement (LI)
%IN
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)
2019 Commenced public outreach and preliminary vessel and terminal designs
2020 COVID 19 significantly impacted operations resulting in lost revenue, reduced ridership,
and conversion to cashless fares to mitigate risk
Completed propulsion study for new vessel
Applied forfederaL-Build Grant and state Consolidated. -Grant Program -_--
Whatcom County obtained approval from USCG to modify the annual dry-docking
schedule with a dockside maintenance substitution. This will be continued for future dry
dockings when eligible.
Terminal structural improvements and full paint job (LI)
u
EXHIBIT "B"
Table 1
RRY SYSTEM CURRENT AND REPLACEMENT VALUES - 2020
M/V Whatcom
Ci irrpnt Stati cti rc rh;of
LENGTH (ft)
94
BEAM (ft)
44
DISPLACEMENT (tons)
78
YEAR BUILT
1962
CAPACITY-- Passengers
100
CAPACITY -- Cars
20
CURRENT INSURED VALUE-2020
$890,000
$ 890,000
YEAR
2024
LENGTH (ft)
184
BEAM (ft)
54
DISPLACEMENT (tons)
100
CAPACITY -- Passengers
150
CAPACITY -- Cars
34
REPLACEMENT VALUE(')
$19,500,000
I IU IAL - KEPLACEMENT VALUE
FACILITIES
SCHEDULED
REPLACEMENT
ESTIMATED
YEAR BUILT OR AMORTIZATION /MODIFICATION
CURRENT BOOK
REPLACEMENT
LOCATION REBUILT PERIOD END YEAR
VALLIE(4)
COST 2020 $'s IZI
Lummi Island Landing
Transfer Span and Dock
1982
2022 2040
--$472,802F
$10,609,000
Dol hins/Win wall/Breakwater
1978
2018 2024
47,481
$7,426,300
Upland Facilities
1978
2018 2024
E 60,000
E$1,780,283
$4,243,600
Subtotal - Lummi Island Landing_
_
$22,278,900
Gooseberry Point Landing
Transfer Span and Dock
1987
2027 11 2024-2046
$569,042
$24,931,150
Dolphins/Wingwal1l3l
2013,2014
2053,2054 2024-2046
$2,945,405
$3,182,700
Upland Facilities
$0
$10,078,550
Subtotal - Gooseberry Point Landing
$3,514,447
$38,192,400
TOTAL FACILITIES VALUE
$5,294,730
$60.471,300
TOTAL VESSEL & FACILITIES VALUE
$6,184,730H
$79,971,300
NOTES:
Ill Cost based on 2020 estimate with 3%per year escalation through 2024
IZl Per 2018 LOS Alternatives Analysis by KPFF Consulting (Costs have been escalated 3%per year and represent 2020 replacement cost.)
(31 Replacement requires relocation, A phased approach to relocation will include modifications to existing
facilities prior to completion of
the n ew fa ci I i ty.
(41 Estimated using 40-year life and straight-line depreciation (including depreciated improvements)
Tahln 7
Lummi Island Ferry 14-Year Capital Program
All $ in 000's Revenues 2021-2027
Category
2021
2022
2023
2024
2025
2026'
2027
Multi -Ride Fares (3)
$1,448
$1,443
$1,475
$1,508
$ 1,542
$1,944
$1,987
Single -Ride Fares (4)
362
361
369
377
385
486
497
(Memo 55%of Operating Cost) (1)
1,811
1,804
1,844
1,885
1,927
2,430
2,484
MVFT Deficit Subsidy250
255
260
265
271
276
282
County Road Fund 0 eratin Subsid
1,594
1,591
1,626
1,662
1,698
1,736
1,775
County Road Fund Capital Subsidy
3,200
350
550
-
-
-
-
CRABCapital Ferry Fundi ng
500
500
500
Total Revenues
6,855
3,999
4,279
3,812
4,396
4,942
5,040
Total Expenditures (2)
6,742
3,884
4,162
17,092
20,574
3,858
3,944
Net Unfunded (Funded) (5)
(113)
(115)
(117)
13,281
16,178
(1,084)
(1,097)
Lummi Island Ferry 14-Year Capital Program
All $ in 000's Revenues 2028-2034
Category
2028
2029
2030
2031
2032
2033
2034
Multi -Ride Fares 3)
$2,032
$2,078
$2,124
$2,172
$ 2,222
$2,276
$2,327
Sin le -Ride Fares 4
508
519
531
543
555
569
582
(Memo 55%of Opera ti nCost) (1)
2,540
2,597
2,656
2,716
2,777
2,845
2,909
MVFT Deficit Subsidy
287
293
299
305
311
317
323
County Road Fund Operating Subsidy
1,814
1,855
1,896
1,939
1,982
2,030
2,076
County Road Fund Capital Subsidy
-
-
-
-
-
-
-
CRAB Capita I Ferry Funding
500
500
500
500
500
500
500
Total Revenues
5,141
5,245
5,350
5,459
5,570
5,691
5,808
Total Expenditures (2)
4,031
4,121
4,214
4,308
4,405
4,511
4,612
Net Unfunded (Funded) 5)
(1,110)
(1,123)
(1,137)
(1,151)
1,165)
(1,181)
(1,196)
Note 1: After Subtracting the MVFT Deficit Subsidy. Budgeted for 55%fare recovery based on historical results
until the new ferry is operational. At that point a 25% increase is factored based on new size and expected
changes in ridership patterns.
Note 2: As Shown On Table 2, including capital expenditures.
Note 3: Equal to 80%of Fares
Note 4: Equal to 20% of Fares
Note 5: Unfunded ferry capital is generally covered using road fund revenue. In thecase of years 2024 and 2025
grant funds are being activly sought as the road fund does not have the capacity to cover these deficits
Note 6: Assumed ridership change with operation of new boat.
9:i
Table 3
Lummi Island Ferry 14-Year Capital Program
All in 000's Table 2 Expenditures 2021-2027 Page 1
Category
2021
2022
2023
2024
2
2026
2027
Operating Expenses
Vessel Operations
Personnel
1,400
1,417
1,445
1,474
1,534
1,564
Fuel &0 eratin Supplies
1,039
1,031
1,062
1,094
1,149
1,183
Insurance
68
70
72
74
77
90
93
Other Operating Expenses
100
104
108
112
117
122
127
Total Vessel Operations
2,607
2,622
2,688
2,755
2,824
2,894
2,967
Other Operations
Administration
410
412
414
416
418
420
422
Parking Lots
Lummi Island
10
10
10
11
11
11
11
Gooseberry Pt.
9
9
9
10
10
10
10
Staging Areas
Lummi Island
28
29
30
31
32
32
33
Gooseberry Pt.
8
8
8
9
9
9
10
Docks
Lummi Island
69
69
70
72
73
75
76
Gooseberry Pt.
401
375
383
390
398
406,
414
Total Operating Expenses
3,542
3,534
3,612
3,692
3,774
3,858
3,944
Capital Expenditures
Replacement of Whatcom Chief
300
300
500
8,400
10,000
Terminal Modifications
5,000
6,800
Gooseberry Pt Terminal Preservation
800
-
-
-
-
Lummi Island Breakwater Replacement
2,050
Relocation'o-f Gooseberry Terminal
SO
50
50
Total Capital Program Costs
3,200
350
550
13,400
16,800
Total Costs
6 742
3,884
4,162
17,092
20,574
31858
3,944
SR
TahlP 3 (rontinupcil
Lummi Island Ferry 14-Year Capital Program
All in 000's Table 2 Expenditures 2028-2034 Page 2
Category
2028
2029
2030
2031
2032
2033
2034
Operating Expenses
Vessel Operations
Personnel
1,596
1,628
1,660
1,693
1,727
1,762
1,797
Fuel &Operating Supplies
1,218
1,254
1,291
1,329
1,368
1,409
1,452
Insurance
95
98
101
104
107
111
114
Other Operating Expenses
132
137
142
148
154
159
163
Total Vessel Operations
3,041
3,117
3,195
3,275
3,356
3,440
3,526
Other Operations
Administration
425
427
429
431
433
435
437
Parking Lots
Lummi Island
11
12
12
12
13
13
13
Gooseberry Pt.
10
11
11
11
12
12
12
Staging Areas
Lummi Island
34
1 35
37
38
39
40
41
Gooseberry Pt.
10
10
10
11
11
18
19
Docks
Lummi Island
78
79
81
1 82
84
86
88
Gooseberr Pt.
422
431
439
448
457
466
476
Total Operating Expenses
4,031
4,121
4,214
4,308
4,405
4,511
4,612
Capital Expenditures
Replacement of Whatcom Chief
Terminal Modifications
Gooseberry Pt Terminal Preservation
Lummi Island Breakwater Replacement
Relocation-, ooseberry Terminal
Total Capital Program Costs
Total Costs
4,031
4,121
4,214
4,308
4,405 1
4,511
4,612
BUIE