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HomeMy WebLinkAboutagenda.council.worksession.20081118MEMORANDUM TO: Mayor and City Council FROM: John D. Krueger, Director of Transportation THRU: Randy Ready, Assistant City Manger DATE OF MEMO: November 13, 2008 MEETING DATE: November 18, 2008 RE: Transportation Work Session-SH 82 Entrance to Aspen • Final Segment Cost Estimates • Travel Time Modeling Analysis • Evaluation Process for Proposed Changes to an EIS Preferred Alternative REQUEST OF COUNCIL: At the June 2, 2008 Transportation Work Session, Council requested further information and analysis on the feasibility studies presented on the Entrance to Aspen preferred alternative, split shot alternative, and reversible lane option. Council asked for a cost estimation and travel time analysis of the alternatives. Staff is requesting direction from Council regarding any further study or analysis to be taken in regard to these Entrance to Aspen alternatives. Any further study or analysis will require additional supplemental funding. PREVIOUS COUNCIL ACTION: • In 2003, a previous Council appointed an S-Curves Task Force to study alternatives for traffic relief through the congested S-Curves corridor. This process led to the implementation of the Main Street Transit Lane as well as the closure of Bleeker, Hallam and the alley in between to thru traffic from/to Hwy 82. ~ In 2006, the Council as a member of the Elected- Officials Transportation Committee (EOTC) helped to fund the Reevaluation of the Entrance to Aspen EIS. The Preferred Alternative was ultimately upheld as still valid. 1 • In 2007, City staff undertook an intensive public input process regarding the Entrance to Aspen that culminated in the keypad meetings at the Wheeler. The split shot, reversible lane, and turn restrictions came out of this public process. • In 2007, Council adopted a parking rate increase. • In 2007, Council as a member of the EOTC also approved and funded the design of the Maroon Creek Bridge and construction of an additional 1.2 miles of bus lane on SH 82 from Buttermilk to the Roundabout. • In 2007, Council directed staff to further analyze the split shot, reversible lane, and turn restriction options that were originally considered as part of the Entrance to Aspen EIS process in the 1990s, the S-Curves Task Force, and came out of the Entrance to Aspen public process. • At its February 19, 2008 work session, Council reviewed information and analysis on the split shot, reversible lane, and turn restriction options. Council directed implementation of a revised timing plan for the Truscott signal. Council also, requested further analysis and study on these options to be resented at a June 2, 2008 work session. • At its June 2, 2008 work session, Council reviewed the additional information and analysis on the preferred alternative, split shot, and reversible lane. Council requested further analysis on these options in the form of travel time modeling, analysis and cost comparison to be presented at this November 18, 2008 work session. DISCUSSION: State Highway 82 Entrance to Aspen Final Cost Estimates At the request of Council, staff retained the Parsons Transportation Group (PTG) to prepare a cost estimates for the final segment of the Entrance to Aspen. Cost estimates were prepared for three alternatives: • The Modified Direct Alternative (Preferred Alternative) • The Split Shot Alternative -with an at grade roundabout • The Split Shot Alternative - with a grade separated intersection These costs estimates update the original cost estimates prepared for the FEIS in 1996 and then updated in 2005 as part of the Re-evaluation of the FEIS. The PTG report provides detailed information on the process and methodology used to update the cost estimates. . State Highway 82 Reversible Lane Cost Estimate At the request of Council, staff retained Schmueser Gordon Meyer (SGM) to prepare a cost estimate for the reversible lane option into town. The reversible lane option cost estimate follows the same format used for the Modified Direct and Split Shot Alternatives. It is 2 considered to be an update to the "Preliminary Opinion of Probable Construction Costs" contained in the "Feasibility Study Update" originally issued in January of 2008 and updated in May of 2008. , Reversible Lane Analysis As a result of Council direction, staff retained Wilson & Company as asub-consultant to PTG to provide analysis on the reversible lane compared to the other alternatives in terms of travel time and average speed. The analysis specifically models and analyzes the reversible lane during the PM peak condition. FINANCIALBUDGET IMPACTS: There are no immediate financial impacts. to the City budget at this time unless Council directs staff to collect additional study or analysis. If further analysis or study is requested, staff will need to come back to Council with a supplemental budget request. Further funding is not available in the Transportation budget for 2008. If any of these alternatives are pursued as solutions to the Entrance to Aspen funding will need to be pursued on the local, state, and federal level. ENVIRONMENTAL IMPACTS: There are no immediate environmental impacts from these studies unless one of these alternatives are fully pursued or implemented. The environmental impacts for the preferred alternative are included in the FEIS as a part of the NEPA process. Any of the other alternatives will have to go through the NEPA process in some form for the environmental impacts to be analyzed. RECOMMENDED ACTION: Staff has no recommendations at this time. The purpose of these additional studies is to provide Council with the additional requested information. If Council requires further study, it should provide direction to staff and consultants for the analysis required or the next steps to be taken. ALTERNATIVES: Council could decide not to provide any further direction to staff or consultants at this time. Council could decide to direct staff or consultants to provide new or different analysis on these or other alternatives. PROPOSED MOTION: No proposed motion is provided or required at this time. CITY MANAGER COMMENTS: 3 ATTACHMENTS: • SH 82 Entrance to Aspen Final Segment Cost Estimates • SH 82 Maroon Creek to Main Street Reversible Lane Revised Cost Estimate • Evaluation Process for Proposed Changes to an EIS Preferred Alternative • Reversible Lane Analysis 4 C~ THE CRY OF ASPEN MEMORANDUM TO: Mayor and City Council R. B Crook, Business Process Manager FROM: ~' THRU: Steve Barwick, City Manager DATE: November 14, 2008 MEETING DATE: November 18, 2008 ~: Audit/CBTF Recommendation Implementation and Policy Issues Background: On October 21St, the City Council held a worksession to accept the Final Report from the Citizen Budget Task Force. During this worksession, Council indicated a desire to take some time. to discuss those recommendations that touch on policy that Council would like to provide guidance for the staff to use in implementing the various recommendations. Discussion: There are seventy-five .recommendations from the two .external audits (Alvarez & Marsal and McMahan & Associates) and the Citizens Budget Task Force. Not all of the seventy-five represents an unduplicated count of recommendations as many of the recommendations are repeated in substance (if not form) between the three recommending entities and many of A&M's recommendations constitute steps towards implementing other recommendations. I have organized the various recommendations into the following groups (see attached document): ^ Restructure/redesign the development function (9 individual recommendations) ^ Leverage external service providers to support long range plans (1 recommendation) ^ Establish a development function separate from Asset Management and create guidelines or policies to. provide the development function with the necessary authority to manage the planned large-scale developments and define reporting relationships of the function within the City hierarchy (6 recommendations) ^ Staff the development function with existing City project managers where pos"sible and recruit additional resources with critical skill sets where necessary (7 recommendations} ^ Develop policies, procedures, tools and templates to aid development staff in accomplishing the department's responsibilities (8 recommendations) Page 1 of 8 ^ Select and implement technologies which support construction program administration - planning, budgeting, scheduling, accounting, analyzing and reporting (6 recommendations) ^ Develop a communication plan for future development projects (6 recommendations) ^ Retain third-party service providers to supplement and compliment existing City resources as needed (6 recommendations) ^ Determine the Development Delivery Model to be used going forwazd - or consider this aproject-by-project decision and make a decision for the next .project (3 recommendations) ^ Contract benchmazking and consider changes to contract language -somewhat dependent on the Development Delivery Model chosen (3 recommendations) . • , ~ Demand and supply dynamics of affordable housing (1 recommendation) •~ Learning organization (3 recommendations) ^ Compliance issues for APCHA policies (4 recommendations) ^ Citizen oversight (1 recommendations) ^ Systems and procedures (1 recommendation) ^ Burlingame and future AH project development (2 recommendations) ^ Financial and management control systems (8 recommendations) The table attached lists each recommendation, the group in which it has been placed, who made the recommendation, arecommended time frame from the group making that recommendation or a status update where the recommendation is completed or underway, and our assessment as to who is going to take the lead on making the recommendation a reality. I have listed ONE recommendation as "not going to be done" -based on feedback I have received that indicates the Council is not disposed to "establishing a Public Policy Review Committee whose purpose is to advise on major capital spending prior to legal commitments" - so you might want to confirm that in this worksession. Our general approach to implementing the recommendations has been to: establish the new department -the Capital Asset Management Department, hire the Director, let that person determine the final need to hire the other new position of Capital Asset Administrator set in motion some efforts that we believe the CAM Director would agree with as an approach to implementation, but not to finalize that until the new director is on board and ready to weigh in (i.e. we have begun to write an RFP for consultant services around the recommendations to establish policies, procedures, tools and templates; looking at the skill sets of current staff in order to determine how those skill sets might be supplemented with third-party providers; select and implement technologies that support construction program administration, etc.) • develop a model for athird-party (temporary employee or consultant) project manager solely to implement all 75 recommendations and hold preliminary discussions about how that might work and who that might be move on those things where the responsible party is already part of the organization - i.e. the Director of Finance and making changes to the budget process budget administration; the Housing Office and the work of the Housing Frontiers Group; review of the purchasing/procurement process; etc.) So we are moving forwazd on some recommendations, yet waiting for the hiring of key personnel before finalizing approaches that they will be responsible for implementing and have to work Page 2 of 8 under. We think this is a responsible way to make all seventy-five recommendations happen - by involving the people who are most directly impacted by the recommendation in implementing those recommendations. Which Recommendations Does Council Wish to Have a Policy Discussion Over? The following came from the briefing memorandum provided to you for your October 21~` Task Force Recommendations are summarized here by Subcommittee and an update has been provided in italics. Housing Subcommittee: • Housing Subcommittee Recommendations on Housing resource efficiency. Adopted by City Council as Resolution #69-2008. • Housing Subcommittee Recommendations set #2. Adopted by City Council as Resolution #69-2008: / Financial Audit of Burlingame Project accounting by McMahan and Associates. Completed July 2008. / Performance Audit of Burlingame Project by Alvarez and Marsal. Completed July 2008. / Numerous other recommendations some of which are highlighted below: ^ Exnert Construction/Desi~n Task Force for- Burlingame 213 Review: The subcommittee recommended that the City form a group of independent construction experts drawn from the local community to advise the City as it compiles its plans to complete the BG project. This group would provide their expertise and advice on construction methods, density considerations, partnership possibilities, sizing of units and the development model to be employed. The City Manager had already formed a "Construction Experts Group" to advise him about how best to proceed on designing and building Burlingame Phase 2/3 and this group functioned as the Task Force the Subcommittee had contemplated. • Creation of committee to investieate incentives: We recommended that the City consider employing financial "incentives" as a way to motivate affordable housing residents to downsize, sell or bridge to free market housing. This committee has been formed by the AspenlPitkin County Housing Authority under the name Housing Frontiers Committee and has been meeting since Wednesday, August 27, 2008. ^ Develo went of olicies and rocedures to ensure accurac of voter information and financial yroie^ coons: We recommended that the City institute the necessary internal controls to assure that financial information included in voter information documents and press releases is accurate. The accuracy of and the release of financial information will be the joint responsibility of the Director of Finance and the City Manager's Office. ^ Analyzing the bondine cauacity of the City's Affordable Housing Fund: We recommended that the City undertake an analysis of its bonding capacity m fight of the recent downturn in the revenues. economy and resulting reduction in Real Estate Transfer Tax (RE This work is a regular feature of any proposed use of debt financing and is a joint effort of the Finance Department and our Bond advisors. ^ Develo went of an im lementation lan and timeline for the recommendations from the two audit firms and the CBTF: We requested the City Council to direct staff to create a Page 3 of 8 comprehensive implementation plan and timeline for the many recommendations that have been made by the two independent audit firths and the CBTF. This effort is underway, with an RFP for a possible Project Manager for ,the implementation effort being prepared and the recruitment for the Director of Capital Asset Management underway. Finalization of the implementation plan will be done after that person is recruited, on board and able to weigh in on the draft plans for implementation. Tax and Finance Subcommittee: • Adopt an objective methodology for evaluating the proposedsubsidy element of all future affordable housing development projects To be finalized by the Affordable Housing Project Manager and the Director of Capital Asset Management in conjunction with the Director of Finance and the City Manager's Office -but is understood to include all relevant cost elements of a housing project as prepared for the Subcommittee in the reconciliation work. • As an element of project planning develop specific subsidy tazget levels for all affordable housing projects and benchmark project progress against this subsidy target through the entire project development process. The current thinking is to provide this target on a case-by-case basis and use it as a comparison between competing projects and as a way of analyzing projects over time. The calculation of the subsidy per unit or per bedroom will remain an element of the project's performance over the lifetime of the project. • Only seek to borrow funds for major capital projects through bond issues or other debt instruments once a detailed project plan is in place and has been communicated to the public. Such a detailed plan should include estimates for all cost components, with documented underlying assumptions for all variables influencing cost. This is understood to be the current direction of the City Council and is being followed as part of the planning process for Burlingame Phase 2/3 and other possible housing projects that are contemplated to be debt financed. Transportation Subcommittee: • RFTA should address mazketing shortcomings in its BRT proposal to provide detailed factual information documenting the need for the requested improvements in the BRT plan, focusing on the benefits to current and future customers and a clear explanation of the status quo vs. BRT scenario as supported by the facts. RFTA bears the responsibility for taking action. • The City of Aspen, CDOT and RFTA must work together more effectively in fmding systemic solutions to traffic and transportation issues involving the entrance to Aspen including consideration of traffic flow improvements including more effective use of HOV vehicles, addressing paking demand and capacity, continuing to evaluate alternative transportation solutions as long term options, including rail, and finally the entrance itself. The City of Aspen has commissioned several consultant reports and made proposals to the Council: / To study the three options that have risen to the forefront on the entrance: (1) the Preferred Alternative, (2) the Split Shot, and (3) the Reversible 3'~ Lane. / In addition studies for intersection improvements at Cemetery Lane (roundabout or grade-separated interchange) are being completed. / Both of the above topics will be the subject of a Council Worksession .scheduled for November 18, 2008. / Changes to the parking demand operations are in the works to extend paid parking by 3 blocks in every direction from the downtown core and to institute new technology used for enforcement. These changes are scheduled to begin on February 1, 2009. Page 4 of 8 • The Task Force recommends the City Council approve the staff recommendation for a Transportation Development Plan (TDP) study related to transportation needs within the City of Aspen. Council approved the undertaking of the TDP work on August 25, 2008. • The Task force recommends the Council create a Citizen's Transportation Advisory Committee for the purpose of evaluating TDP study results and providing citizen input on all transportation, entrance and parking policy issue as they relate to service level and budgetary This is the first time this recomm an advisory committee for the Transportation Subcommittee). ndation has come before the City Council. The staff has inctudea TDP (including an imitation to every member of the CBTF Task Force as a Whole: The Task Force also considered generally the potential benefit of a standing Citizen Budget and Finance Committee and while it reached no consensus for recommendation as to form, wished to forward this question to the City Council for fiuther consideration. This is the first time this recommendation has come before the City Council Possible Topics for Policy Discussion My sense is that the following list would involve some level of policy discussion, and NOT the entire list of 75 recommendations (in italics is my fast pass at the policy issue involved). 1. Large grid mid-sized projects with a multiple year timeline would utilize internal City staff for construction management and oversight but would require an external "owner's representative" to assist in oversight and internal project cost. What would constitute "large and mid-sized projects with multiple year timeline "and would entail the hiring of an external owner's representative? 2. Collaborate with City of Aspen public relations to define protocols for internal and external construction program communication. Adopt a more formalized process for preparing voter information in anticipation of future ballot questions. Implement process to ensure accuracy of voter information and reasonableness of financial projections. What level of involvement and oversight does Council wish to have over public communications related to construction projects and voter information? 3. Determine the Development Delivery Model to be used going forward - or consider this a project-by-project decision and make a decision for the next project. -and the associated 3 recommendations that make up that group. What level of involvement and oversight does Council wish to have over defining the development delivery model and determining when that model gets used (for which projects)? 4. Establish Public Policy Review Committee whose Purpose is to advise on major Capital spending prior to legal commitments. Page 5 of 8 As indicated earlier, I have listed this as recommendation that was not going to be followed - does that represent Council direction? 5. Study and incorporate BG development options by CEG as to: construction methods, public/private partnerships that lessen public subsidies, density increases in terms of both sizing of units and number of units, more economical finishes that utilizes the City's buying power or allows for owner purchased upgrades. Preparation of a detailed plan and a comprehensive budget for BG 2/3 using recommendations from CEG. Both of these recommendations will be part of another worksession relative to direction on Burlingame Phase 2/3. 6. Council establish a written policy and guidelines for AH subsidies for current and future AH projects. This policy to acknowledge a connection between subsidy levels and financial capacity of a AH project and possible overall impact on City's financial condition. My sense is that this recommendation may have been the catalyst for this worksession. From our perspective, we would approach this -and recommend to you for your consideration - that the policy be that an analysis of the subsidy be part of every project going forward. That this would generally include all those elements included in the reconciliation for Burlingame that the staff agreed was a reasonable cost to be allocated to the project - i.e. land, predevelopment expenses, offsite infrastructure that was attributable to the project (offsite infrastructure that benefited other development would NOT be allocated to the AHproject), onsite infrastructure, vertical construction and mitigation REQUIRED for the approval of the project. The guiding principle would be that any mitigation that the Council would require of a private developer in order to gain entitlements to develop the project, would be mitigation that is properly allocated to the development. This would exclude amenities that the City would normally provide in the course of providing services and amenities to its citizens - i. e. trails and parks that service the entire community and which you would not exact from a private developer. Included as a credit to the project would be mitigation provided for the use of the entire community, but which come as a result of the project and is paid for by the Housing Development Fund -but which would not be required as a condition of development approval if the developer were a private developer and not the City. As to the cost of financing a particular project, the Housing Subcommittee had originally asked us to calculate the cost of financing in a particular way - by calculating the net present value of the stream of interest payments over the lifetime of a particular bond issue (although they later denied that they asked for that methodology, it was in fact requested to be calculated that way). We did that, but indicated that we did not agree with doing it that way. At that point, several other members of the Housing Subcommittee weighed in on the propriety of including financing as an allocated cost to a particular project (in this case, Burlingame Phase 2/3) and how to calculate it - in the end the Subcomminee could not agree on a methodology and did not make a speck recommendation regarding how/whether to allocate financing costs. Page 6 of 8 The City does not currently capitalize interest for its capital projects and is not required to under the industry accounting regulations provided for governments (GAAFR): As such we would propose that this not be included as a project cost. As an alternative, GAAFR does allow for'capitalized interest to be included as a cost but it must be done for all city projects that are financed and is calculated as the interest cost during construction of the project. The City would have to make a change to its accounting procedures going forward if this method is chosen. e wou recommen a you a cos o e manctng your a or a e oustng program and consider that as part of the decision about how to pay for your housing program decisions -but we would recommend you NOT include the cost of financing in the subsidy calculation for a particular project. How you choose to make your final decision on a particular affordable housing project and the role of the projected subsidy amount would be an ad hoc decision and up to-the Council at the time of the project. If you were choosing between projects, the subsidy amount would be one factor in your. deliberations, but not necessarily the decisive factor. For instance, some projects may well have a high subsidy calculation, but other factors (like location or density) would outweigh the subsidy as a deciding factor. What we will do is to calculate the subsidy from the beginning stages of a project (according to the principles listed above), and continue to recalculate that subsidy amount throughout the project so you can use it as benchmarkfor your discussions and your decision-making. What is the Council's pleasure on this recommendation? 7. The Task force recommends the Council create a Citizen's Transportation Advisory Committee for the purpose of evaluating TDP study results and providing citizen input on all transportation, entrance and parking policy issue as they relate to service level and budgetary impacts What is the Council's pleasure on this recommendation? 8. The Task Force also considered generally the potential benefit of a standing Citizen Budget and Finance Committee and while it reached no consensus for recommendation as to form, wished to forward this question to the City Council for further consideration. What is the Council's pleasure on this recommendation? 9. The City should consider carefully all effects of extending the full faith and credit of the City and weight such effects against the value of any expected savings of debt service costs." The City would continue to weigh carefully all of the effects of extending the full faith and credit of the City to any Bond issue. The City has an excellent bond rating and its financial policies are designed to insure that the City maintains that rating. It takes the obligation to repay money that it borrows very seriously. Since the City will do whatever it takes to repay the money that it has borrowed anyway, it may as well get the benefit of the de facto pledge when it can, by issuing bonds with general obligation pledge. This saves the City money in the form of lower interest costs. Page 7 of 8 Previous Council Action: On October 215`, the Council passed Resolution 103-08, accepting the Final Report of the Citizens Budget Task Force and thanking the members for their contribution to the City of Aspen and the City Council. Request of Council: Provide policy direction on the implementation of recommendations made by Alvarez & Marsal, McMahan & Associates, and the Citizens Budget Task Force. Page 8 of 8 ~. ~- ~~ ~ g _~ Q, Q ~:Q ~ ~Q . Q~. U U' U CJ ~U ;- - , ~~ ~~ '- o o ,~ , , O ~ O- o ~- O ;' O. O. _; O O _ O . ll U U` - - ~ ~- .' ~. 0. i. . - Q _ Q, Q _ Y -.p ;: - _ O p `_ 47 _ _ ~ ~ ~,_ _ ~~.: - - -. 1 S 1 ~ - - - t. =~ ~. Y ~ .C ~ ~ ~ O „ C L C (13 6 J v`-- O -' L ~' U ~~ - ., O ...... , :: ( to " - ~' N L i'~ O v N.' O ~. -_ ,3 ~. ~ p _ C.Uj.C ~ ~L 'Cif O Lj--., cp C~ ~.,~ ~- `_(J (n `--.C. -CC} ~";E metro ~ ~ ~ _ ~ ~~~ ~'U a~- a~ ~ a~: ~', ~':~ ~ C'" U<p ~--' O ~ Q~ O gip. ~-~_ C =C. 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