HomeMy WebLinkAboutres2022-040•
Whatcom County
COUNTY COURTHOUSE
311 Grand Avenue, Ste #105
Bellingham, WA 98225-4038
(360) 778-5010
•
Agenda Bill Master Report
File Number: AB2022-493
File ID:
AB2022-493
Version: 1
Status: Approved
File Created:
08/31/2022
Entered by: LCumming@co.whatcom.wa.us
Department:
Public Works
File Type: Resolution Requiring a Public Hearing
Department
Assigned to:
Council
Final Action: 09/27/2022
Agenda Date:
09/27/2022
Enactment #: RES 2022-040
Primary Contact Email: sdraper@co.whatcom.wa.us
TITLE FOR AGENDA ITEM:
Resolution approving the Whatcom County Six -year Transportation Improvement Program for the
years2023-2028
SUMMARY STATEMENT OR LEGAL NOTICE LANGUAGE:
The resolution includes the 2023-2028 Six Year Transportation Improvement Program (STIP), Exhibit
A, and capital elements of the first six years of the Fourteen -Year Ferry Capital Program, which is
attached hereto as Exhibit `B"
HISTORY OF LEGISLATIVE FILE
Date: Acting Body:
Action:
Sent To:
09/13/2022 Council INTRODUCED FOR PUBLIC Council
HEARING
Aye: 7 Buchanan, Byrd, Donovan, Elenbaas, Frazey, Galloway, and Kershner
Nay: 0
Absent: 0
09/27/2022 Council APPROVED AS AMENDED
Aye: 7 Buchanan, Byrd, Donovan, Elenbaas, Frazey, Galloway, and Kershner
Nay: 0
Absent: 0
Whatcom County Page 1 Printed on 9/28/2022
Agenda Bill Master Report Continued (AB2022-493)
Attachments: Staff Memo, Proposed Resolution with Exhibits, Attachment A, Attachment B, Attachments
C1-C3, Attachment D, Attachment E, Project Narratives, Revised Staff Memo - After Hearing,
Revised Exhibit A, Revised Attachment B - After Hearing, Revised Attachments C1-C3 - After
Hearing, Revised Resolution - After Hearing
Whatcom County Page 2 Printed on 912812022
PROPOSED BY: Public Works
INTRODUCED: 9/1 3/2022
RESOLUTION NO. 2022-040
SIX -YEAR TRANSPORTATION IMPROVEMENT PROGRAM
FOR THE YEARS 2023 THROUGH 2O28
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 under the 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
2023 through 2028, 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.
APPROVED this 27th day of September , 2022.
ATTQ5 PCs COUNTY
Dana`'Browo bp§ls; :KWof the,
"Council
APPROVED AS�TO'11ORM,,,
WHATCO,fq COUNTY COUNCIL
WHAT96M COUNTY, WASHINGTON
V
Todd Donovan, Chair of the Council
/s/ Christopher Quinn via e-mail 9/13/22 /JL
Chris Quinn, Senior Civil Deputy Prosecuting Attorney
Page 2
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EXHIBIT "B"
WHATCOM COUNTY
2023-2036 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 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 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 or an a out -of -service maintenance every year for its vessel. The terminal structures are
inspected regularly as required by the National Bridge 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.
-2-
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 #2018-026. 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 2023-2028 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 2023-2028 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.
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.
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.
-3-
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.
4. New Vessel and Terminal Improvements Progress Updates
A. Whatcom County Council passes resolution #2021-011 giving direction to Whatcom County
Public Works to pursue funding through the BUILD (RAISE) grant program. The Council
recognizes the formation of a ferry district is no longer the best option.
B. Lummi Island Ferry Advisory Committee unanimously recommends to the Whatcom County
Council a $1.00 per trip surcharge to go towards the new vessel and terminal improvements cost.
Council adopts the recommendation as ordinance #2021-012.
C. 2022 Lummi Nation Planning Commission reviews previous study for relocation of Gooseberry
Point terminal, begins internal discussion.
D. Washington State passes the Capital Projects Budget Supplement "Move Ahead WA"; including
$5.3M in Transportation Appropriation for the new ferry and terminal improvements.
E. County Road Administration Board unanimously recommends a $10M grant program for the
project ($500k for 20 years); Recommendation goes to the WA State legislature for 2023
approval.
F. August 2022 US DOT awards Whatcom County $25M through the RAISE grant program for the
new vessel and terminal improvements.
G. Whatcom County Public Works negotiates a scope of work with PSE for an infrastructure study to
determine alternatives to provide power for new vessel.
Minor Maintenance
General minor maintenance is continual on the ferry, terminals, 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.
ME
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 the 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)
Rate increase
2009 Emergency North wingwall replacement (LI)
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)
-5-
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
Completed Lummi Island Preservation Project which included application of new paint system on transfer
span, tower assemblies and apron (LI)
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 for federal 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)
2021 Completed the Gooseberry Point Terminal Preservation Project which included application of new paint
system on transfer span, tower assemblies and apron (GP)
2022 Replaced existing southerly timber breakwater with new steel breakwater at the Lummi Island Terminal
(LI)
-6-
Table 1
FERRY SYSTEM CURRENT AND REPLACEMENT VALUES - 2022
M/V Whatcom
Currpnt Statigtir� Chief
LENGTH (ft)
94
BEAM (ft)
44
DISPLACEMENT (tons)
78
YEAR BUILT
1962
CAPACITY -- Passengers
100
CAPACITY -- Cars
20
CURRENT INSURED VALUE-2022
$890,000
TOTAL CURRENT VALUE - 2022
Rpn1--nt Ctat,,,i
YEAR
2024
LENGTH (ft)
184
BEAM (ft)
54
DISPLACEMENT (tons)
100
CAPACITY -- Passengers
150
CAPACITY -- Cars
34
REPLACEMENT VALUEM
$25,653,000
AL - REPLACEMENT VALUE
LITIES
$890,000
SCHEDULED
REPLACEMENT ESTIMATED
YEAR BUILT OR AMORTIZATION /MODIFICATION CURRENT BOOK REPLACEMENT
LOCATION REBUILT PERIOD END YEAR VALUE(4) COST 2022 $'s (2)
Lummi Island Terminal
Transfer Span and Dock
Dolphins/Wingwall/Breakwater
Upland Facilities
Subtotal - Lummi Island Terminal
Gooseberry Point Terminal
Transfer Span and Dock
Dolphins/Wingwall(')
Upland Facilities
Retrofit & Electrification(5)
Subtotal - Gooseberry Point Terminal
1982 2022 2040 $421,345 $11,593
1978 2018 2024 $1,648,917 $8,114
1978 2018 2024 $60,000 $4,637
1987 2027 2024-2046
.3, 2014 2053, 2054 2024-2046
TOTAL FACILITIES VALUE
TOTAL VESSEL & FACILITIES VALUE
NOTES:
(l) Cost based on figures from the RAISE Grant Submission
i') Per 2018 LOS Alternatives Analysis by KPFF Consulting (Costs have been escalated 3% per year and represent a 2022 replacement cost of the
full structure, not the retrofit for a new boat.)
'3) Replacement requires relocation. A phased approach to relocation will include modifications to existing facilities prior to completion of the
new facility.
'4) Estimated using a 40-year life and straight-line depreciation (including depreciated improvements)
5) Retrofit & Electrification costs represent the required modification to the facilities to accept a replacement boat, not a full rebuild.
0A r:zR
-7-
$3,895,909
$66,370,000
$6,026,171
$90,714,000
$6,916,171
$116,367,000
Table 2
Lummi Island Ferry 14-Year Capital Program
All $ in 000's Revenues 2023-2029
Category
2023
2024
2025
2026
2027
2028
2029
Multi -Ride Fares (3)
$1,506
$1,539
$1,573
$1,608
$ 1,644
$1,680
$1,717
Single -Ride Fares (4)
377
385
393
402
411
420
429
(Memo 55% of Operati ng Cost) (1)
1,883
1,924
1,967
2,010
2,055
2,100
2,147
MVFT Deficit Subsidy
320
326
333
340
346
353
360
County Road Fund Operating Subsidy
1,684
1,721
1,759
1,797
1,837
1,877
1,919
County Road Fund Capital Subsidy
436
108
50
-
-
-
County Road Fund or Potential Outside Funding
1,342
9,428
1,030
3,363
Ferry Replacement Fund
200
202
204
206
209
212
215
CRAB Capital Ferry Funding
276
5,025
1,000
1,000
500
500
500
Federal Raise Grant
574
6,153
8,673
8,940
660
Total Revenues
5,373
16,802
23,413
15,323
8,970
5,043
5,141
Total Expenditures (2)
5,229
16,655
23,263
15,170
8,814
4,884
4,979
Net Unfunded (Funded) (5)
(144)
(147)
(150)
(153)
(156)
(159)
(162)
Lummi Island Ferry 14-Year Capital Program
All $ in 000's Revenues 2030-2036
Category
2030
2031
2032
2033
2034
2035
2036
Multi -Ride Fares (3)
$1,756
$1,795
$1,835
$1,876
$ 1,919
$1,965
$2,009
Single -Ride Fares (4)
439
449
459
469
480
491
502
(Memo 55% of Operating Cost) (1)
2,195
2,244
2,294
2,346
2,398
2,456
2,512
MVFT Deficit Subsidy
368
375
382
390
398
406
414
County Road Fund Operating Subsidy
1,961
2,005
2,049
2,095
2,141
2,192
2,241
County Road Fund Capital Subsidy
-
-
-
-
-
-
-
Outside Funding
-
-
-
-
-
-
-
Ferry Replacement Fund
217
220
222
224
226
228
230
CRAB Capital Ferry Funding
500
500
500
500
500
500
500
Federal RAISEGrant
-
-
-
-
-
-
-
Total Revenues
5,240
5,343
5,447
5,554
5,663
5,782
5,897
Total Expenditures (2)
5,075
5,175
5,275
5,379
5,484
5,599
5,710
Net Unfunded (Funded) (5)
(165)
(169)
(172)
(176)
(179)
(183)
(186)
Note 1: Fare revenue is not calculated on ridership and is instead calculated based on a 55% recovery of
expenditures as outlined in farebox recovery legislation. With this collection goal, actual ridership numbers will
help determine fare prices.
Note 2: As Shown On Table 2, including capital expenditures.
Note 3: Equa l to 80% of Fares
Note 4: Equa I to 20% of Fares
Note 5: Unfunded ferry capital is generally covered using road fund revenue. In the case of years 2024 to 2027
various funding mechanisms are being looked at supplementthe road fund. A partial debtservicethat may or may
not be needed has been added for years 2028 and beyond.
15:.2
Table 3
Lummi Island Ferry 14-Year Capital Program
All in 000's Table 2 Expenditures 2023-2029 Page 1
Category
2023
2024
2025
2026
2027
2028
2029
Operating Expenses
Vessel Operations
Personnel
1,381
1,409
1,437
1,466
1,495
1,525
1,555
Fuel & Operating Supplies
1,182
1,216
1,252
1,288
1,325
1,364
1,403
Insurance
78
80
83
85
1 88
90
93
Other Operating Expenses
111
115
120
125
130
135
140
Total Vessel Operations
2,752
2,821
2,891
2,964
3,038
3,114
3,191
Other Operations
Administration
476
478
481
483
486
488
490
Parking Lots
Lummi Island
9
9
9
10
1 10
10
10
Gooseberry Pt.
10
10
10
11
11
11
11
Staging Areas
Lummi Island
18
19
19
20
20
21
21
Gooseberry Pt.
8
8
8
9
9
9
10
Docks
Lummi Island
69
70
72
73
75
76
78
Gooseberry Pt.
401
409
417
426
1 434
443
452
Total Operating Expenses
3,743
3,825
3,908
3,994
4,082
4,172
4,264
Capital Expenditures
Replacement of Whatcom Chief
415
10,096
13,812
1,331
-
-
Terminal Modifications
1,021
2,684
5,493
9,845
4,732
Relocation of Gooseberry Terminal
50
50
50
Potential DebtServicetoOutside Fundingi'I
712
715
Total Capital Program Costs
1,486
12,830
19,355
11,176
4,732
712
715
Total Costs
5,229 1
16,655 1
23,263 1
15,170 1
8,814 1
4,884
4,979
Note 1: Debt Service was added for 2028 and beyond though it has not yet been determined what funding mechanism will be used.
-9-
Table 3 (continued)
Lummi Island Ferry 14-Year Capital Program
All in 000's Table 2 Expenditures 2030-2036 Page 2
Category
2030
2031
2032
2033
2034
2035
2036
Operating Expenses
Vessel Operations
Personnel
1,586
1,618
1,650
1,683
1,717
1,751
1,786
Fuel & Operating Supplies
1,443
1,485
1,527
1,571
1,615
1,663
1,712
Insurance
95
98
101
104
107
111
114
Other Operating Expenses
146
152
158
164
171
176
181
Total Vessel Operations
3,271
3,353
3,437
3,523
3,611
3,701
3,794
Other Operations
Administration
493
495
498
500
503
505
508
Parking Lots
Lummi Island
10
11
11
11
11
12
12
Gooseberry Pt.
12
12
12
13
13
13
14
Staging Areas
Lummi Island
22
23
23
24
25
26
26
Gooseberry Pt.
10
10
10
11
11
18
19
Docks
Lummi Island
79
81
82
84
86
88
89
Gooseberry Pt.
461
470
479
489
499
509
519
Total Operating Expenses
4,358
4,455
4,553
4,655
4,758
4,871
4,980
Capital Expenditures
Replacement of Whatcom Chief
-
Terminal Modifications
Relocation of Gooseberry Terminal
-
Debt Serviceto Outside Funding
717
720
722
724
726
728
730
Total Capital Program Costs
717
720
722 1
724
726
728
730
Total Costs
5,075
5,175
5,275
5,379
5,484
5,599
5,710
Note 1: Debt Service was added for 2028 and beyond though it has not yet been determined what funding mechanism will be used.