HomeMy WebLinkAboutres2023-024Whatcom County COUNTY COURTHOUSE
311 Grand Avenue, Ste #105
Bellingham, WA 98225-4038
(360) 778-5010
Agenda Bill Report
File Number: A132023-574
File ID: AB2023-574 Version: 1 Status: Approved
File Created: 08/30/2023 Entered by: LCumming@co.whatcom.wa.us
Department: Public Works File Type: Resolution Requiring a Public Hearing
Department
Assigned to: Council
Agenda Date: 09/26/2023
Related Files:
Primary Contact Email: sdraper@co.whatcom.wa.us
TITLE FOR AGENDA ITEM:
Final Action: 09/26/2023
Enactment #: RES 2023-024
Resolution approving the Whatcom County Six -year Transportation Improvement Plan for the years
2024-2029
SUMMARY STATEMENT OR LEGAL NOTICE LANGUAGE:
The resolution includes the 2024-2029 Six -year Transportation Improvement Program (STIP), Exhibit
A, and capital elements of the first 7 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:
09/12/2023 Council INTRODUCED FOR PUBLIC Council
HEARING
Aye: 6 Buchanan, Byrd, Donovan, Frazey, Galloway, and Kershner
Nay: 1 Elenbaas
09/26/2023 Council APPROVED
Aye: 7 Buchanan, Byrd, Donovan, Elenbaas, Frazey, Galloway, and Kershner
Nay: 0
Attachments: Memo, Proposed Resolution, Attachment A, Attachment B, Attachments Cl-C3, Attachment D,
Attachment E, Attachment F
Whatcom County Page 1 Printed on 912712023
PROPOSED BY: Public Works
INTRODUCED: q/12/2023
RESOLUTION NO. 2023 - 024
SIX -YEAR TRANSPORTATION IMPROVEMENT PROGRAM
FOR THE YEARS 2024 THROUGH 2O29
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 I
NOW, THEREFORE, BE IT RESOLVED by the Whatcom County Council as follows:
1. That the Whatcom County Six -Year Transportation Improvement Program forth e years
2024 through 2029, 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�qVEO'thifs Oth day of September, 2023.
�' o '
'ro WHATCOM COUNTY COUNCIL
ATT.EC'OuF1 m WHATCOM COUNTY WA HINGTON
Dana'B ownaDa id,i` I Wof the Council Ba ry , anan, air of the Council
r
APPROVED,'AS TO''FORM," '�
Approved Via Email-CQ/LC
Chris Quinn, Senior Civil Deputy Prosecuting Attorney
Page 2
Agency: Whatcom County
County No. 37 Co. Name: Whatcom Co.
City No: 0000 MPO/RPONONANCCG
Exhibit "A"
Six Year Transportation Improvement Program
2024-2029
Road Capital Construction
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Photo by Dan Ohms
W HATCO M COUNTY
2024-2037 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
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 is intended as 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 operating and capital project
funding sources 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 and
establishes 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. The resolution also 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 2024-2029 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 vessel design shall accommodate all walk-on passengers during typical peak times,
accommodate legal vehicle loads 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 vessel's design shall be a hybrid diesel-electric.
2. Terminals
A. The design of the marine structure modifications to the terminals at Gooseberry Point and
Lummi Island to accommodate the new vessel are included in the 2024-2029 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 reconfiguration of the queuing lanes, installation of ADA restrooms,
and improvements to bicycle and pedestrian loading by locating the queuing area as close to the
vessel as possible, reducing 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 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.
-3-
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 ride 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.
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 (CRAB) 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 the new vessel.
H. July 2023, the WA State legislature approves the first $1M of the CRAB funding in the 23-25 state
biennium budget.
Minor Maintenance
General minor maintenance continues 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.
M
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)
Rateincrease
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)
2022 Completed repair of most waterward northern timber dolphin at the Lummi Island Terminal (LI)
2023 Completed repair to southerly mid -ship timber dolphin at the Lummi Island Terminal (LI)
Table 1
SYSTEM CURRENT AND REPLACEMENT VALUES - 2023
M/V Whatcom
ri i rront Ctati cti rc rhivf
LENGTH (ft)
94
BEAM (ft)
44
DISPLACEMENT (tons)
78
YEAR BUILT
1962
CAPACITY --Passengers
100
CAPACITY - Cars
20
CURRENT INSURED VALUE-2023
$840,000
TOTAL CURRENT VALUE - 2023
RPnInrPmPnt Statistirt
YEAR
2024
LENGTH (ft)
184
BEAM (ft)
54
DISPLACEMENT (tons)
100
CAPACITY --Passengers
150
CAPACITY -- Cars
34
REPLACEMENT VALUE(')
$25,653,000
Lummi Island Terminal
Transfer Span and Dock
Dol phi ns/W i ngwa I I/Brea kwater
Upland Facilities
Subtotal - Lummi Island Terminal
Gooseberry Poi nt Termi na I
Transfer Span and Dock
Dolphins/Wingwa11131
Upland Facilities
Retrofit & Electrification(5)
Subtotal - Gooseberry Point Terminal
FACILITIES VALUE
VESSEL & FACILITIES VALUE
$840,000
SCHEDULED
REPLACEMENT ESTIMATED
YEARBUILTOR AMORTIZATION /MODIFICATION CURRENT BOOK REPLACEMENT
REBUILT PERIOD END YEAR VALUE(') COST 2023 $'s IZI
1982 2022 2040
1978 2018 2024
1978 2018 2024
1987 11 2027 JI 2024-2046
2013.2014 11 2053,2054 11 2024-2046
14
7
S 24.638.000
$2,561,287
$67,621,000
$5,837,229
$92,695,000
$6,677,220
$118,348,000
Cost based on 2022 figures from the RAISE Grant Submission
Per 2018 LOS Alternatives Analysis by KPFF Consulting (Costs have been escalated 3% per year and represent a 2023 replacement cost of
full structure, not the retrofit for a new boat.)
Replacement requires relocation. A phased approach to relocation will include modifications to existing facilities prior to completion of
new facility.
Reported from 2022 year end using a 20-year life for improvements and straight-line depreciation (including depreciated improvements)
Retrofit & Electrification costs represent the required modification to the facilities to accept a replacement boat, not a full rebuild.
-7-
Table 2
Lummi Island Ferry 14-Year Capital Program
All $ in 000's Revenues 2024-2030
Category
2024
2025
2026
2027
2028
2029
2030
Multi -Ride Fares (3)
$1,107
$1,246
$1,369
$ 1,480
$ 1,582
$1,677
$1,767
Single -Ride Fares (4)
277
312
342
370
396
419
442
Supplement to fares (above existing rates)
549
439
351
281
225
180
144
(Memo 55%of Operating Cost) (1)
1,933
1,997
2,063
2,131
2,203
2,276
2,353
MVFT Subsidy & Ferry Deficit Reimb.
550
561
572
584
595
607
619
County Road Fund Operating Subsidy
1,581
1,634
1,688
1,744
1,802
1,862
1,925
Ferry Replacement Fund
160
163
166
170
173
177
180
CRAB Capital Ferry Funding
500
500
500
500
500
500
500
Federal Raise Grant
-
-
5,000
19,000
1,000
-
-
State Move Ahead Washington Funds
436
698
4,166
Federal Ferry Boat Program Funding
521
521
521
Bond or other funding (6)
12,000
5,000
Total Revenues
5,681
6,073
14,676
24,129
18,273
10,423
5,577
Total Expenditures (2)
5,160
5,552
17,153
23,764
16,488
10,193
5,614
Net Funded (Unfunded) (5)
521
521
(2,476)
365
1,785
230
(37)
Lummi Island Ferry 14-Year Capital Program
All $ in 000's Revenues 2031-2037
Category
2031
2032
2033
2034
2035
2036
2037
Multi -Ride Fares (3)
$1,946
$2,011
$2,079
$ 2,150
$ 2,223
$2,299
$2,378
Single -Ride Fares (4)
486
503
520
538
556
575
594
Supplement to fares (above existing rates)
115
92
74
59
47
38
30
(Memo 55%of Operating Cost) (1)
2,432
2,514
2,599
2,688
2,779
2,874
2,972
MVFT Subsidy & Ferry Deficit Reimb.
632
644
657
670
684
698
711
County Road Fund Operating Subsidy
2,274
2,347
2,422
2,501
2,582
2,665
2,752
Ferry Replacement Fund
184
187
191
195
199
203
207
CRAB Capital Ferry Funding
500
500
500
500
500
500
500
Total Revenues
6,022
6,193
6,370
6,554
6,743
6,940
7,143
Total Expenditures (2)
5,774
5,938
6,107
6,283
6,465
6,653
1 6,848
Net Funded (Unfunded) (5)
248
255
263
271
279
287
295
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 I to 80% of Fares
Note 4: Equal 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 atsupplementthe road fund.
Note 6: Bond funding will likely be needed and has been added in to year 2028.
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Table 3
Lummi Island Ferry 14-Year Capital Program
All in 000's Table 2 Expenditures 2024-2030 Page 1
Category
2024
2025
2026
2027
2028
2029
2030
Operating Expenses
Vessel Operations
Personnel
1,700
1,768
1,839
1,912
1,989
2,068
2,151
Fuel &Operating Supplies
1,289
1,328
1,368
1,409
1,451
1,494
1,539
Insurance
91
94
97
99
102
105
109
Other Operating Expenses
207
215
224
233
242
252
262
Total Vessel Operations
3,287
3,405
3,527
3,653
3,784
3,920
4,061
Other Operations
Administration
420
422
424
426
428
431
433
Parking Lots
Lummi Island
6
6
6
6
6
7
7
Gooseberry Pt.
6
6
6
6
6
7
7
Staging Areas
Lummi Island
15
15
16
16
17
17
18
Gooseberry Pt.
8
8
8
9
9
9
10
Docks
Lummi Island
70
71
73
74
76
77
79
Gooseberry Pt.
252
257
262
267
273
278
284
Total Operating Expenses
4,064
4,191
4,323
4,459
4,600
4,746
4,897
Capital Expenditures
Replacement of Whatcom Chief
125
290
10,096
13,812
1,331
-
-
Terminal Modifications
570
517
2,329
4,967
4,998
Upland Improvements
160
212
57
-
1,427
Electrification
191
292
298
526
3,420
4,732
Relocation of Gooseberry Terminal
50
50
50
Potential Debt Service toOutside Fundingll1
712
715
717
Total Capital Program Costs
1,096 1
1,361 1
12,830
19,305
11,888
5,447
717
Total Costs 1
5,160
5,552
17,153
23,764
16,488 1
10,193
5,614
Note 1: Debt Service was added for 2028 and beyond though it has not yet been determined what funding mechanism will be used.
Table 3 (continued)
Lummi Island Ferry 14-Year Capital Program
All in 000's Table 2 Expenditures 2031-2037 Page 2
Category
2031
2032
2033
2034
2035
2036
2037
Operating Expenses
Vessel Operations
Personnel
2,237
2,327
2,420
2,516
2,617
2,722
2,831
Fuel &Operating Supplies
1,585
1,633
1,682
1,732
1,784
1,838
1,893
Insurance
112
115
119
122
126
130
134
Other Operating Expenses
272
283
295
306
319
331
345
Total Vessel Operations
4,207
4,358
4,515
4,677
4,846
5,021
5,202
Other Operations
Administration
435
437
439
441
444
446
448
Pa rki ng Lots
Lummi Island
7
7
7
7
7
8
8
Gooseberry Pt.
7
7
7
7
7
8
8
Staging Areas
Lummi Island
18
19
20
20
21
21
22
Gooseberry Pt.
10
10
10
11
11
11
12
Docks
Lummi Island
80
82
84
85
87
89
91
Gooseberry Pt.
289
295
301
307
313
320
326
Total Operating Expenses
5,054
5,216
5,383
5,557
5,737
5,923
6,116
Capital Expenditures
Replacement of Whatcom Chief
Terminal Modifications
Upland Improvements
Electrification
Relocation of Gooseberry Terminal
-
-
-
-
-
DebtServicetoOutsideFunding
720
722
724
726
728
730
732
Total Capital Program Costs
720
722
724
726
728
730
732
Total Costs
5,774
5,938
6,107
6,283
6,465
6,653
6,848
Note 1: Debt Service was added for 2028 and beyond though it has not yet been determined what funding mechanism will be used.