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MEMORANDUM
TO: Mayor and Council
FROM: April Barker, Stormwater Manager, Engineering
THRU: Trish Aragon, P.E., City Engineer
Scott Miller, Capital Asset Director
DATE OF MEMO: August 17, 2009
MEETING DATE: August 25, 2009 Work Session
RE: Urban Runoff Management Plan DRAFT
SUMMARY: Staff is presenting the latest draft of the Urban Runoff Management Plan
(Plan). This Plan contains design criteria and technical guidance for addressing
stormwater drainage in development and redevelopment in Aspen.
REQUEST OF COUNCIL: Staff is requesting comment from Council on the draft and
requesting to proceed with the adoption by ordinance of the updated Urban Runoff
Management Plan.
BACKGROUND: In December 2008, Council approved a professional services
contract with AMEC Earth and Environmental, Inc. for the development of an updated
Urban Runoff Management Plan - a capital project aimed at improving stormwater
management in the City. This manual was last officially updated in the 1970s. The
City's stormwater drainage requirements and design criteria have been periodically
modified since then but never officially accepted through ordinance. Staff felt this
criteria was outdated and inadequate to efficiently and consistently review development
plans and to meet the goals of the Clean River Initiative. The goal of the Clean River
Initiative is to significantly reduce the amount of urban stormwater pollutants reaching
the Roaring Fork River.
Council has stated that staff should place focus on mitigating the impacts of development
and construction on the environment. Also, one of Council's Best Yeaz Yet goals in
2009 is to implement a development review and building permitting process that enables
the City Council to act as environmental stewazds. There aze currently no standazds or
requirements to address water quality in the City's drainage criteria.
In April of this yeaz, staff and consultants presented an update on the manual's progress.
The major topic of discussion was the new water quality design standazds. The new
criteria requires development and redevelopment to design and implement permanent
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best management practices (BMPs) that can remove pollutants from their site's runoff
before it leaves their site. The pollutant of focus in Aspen and the Roazing Fork River is
TSS (total suspended solids}. TSS can be removed from stormwater by filtration,
infiltration, and settling. Council supported this approach to improving the quality of
stormwater runoff in the City.
DISCUSSION: The Urban Runoff Management Plan is referenced in the Land Use
Code 26.580.020.B.6.a as the guidance document for drainage design criteria. Since
January, the consulting team and staff have been working to update the Urban Runoff
Management Plan, a draft of which is attached.
The goals of this update were to:
• Acquire Aspen-specific rainfall and snowmelt data for the development of
equations and standazds used in Aspen's design criteria.
• Provide technical guidance on the latest and most relevant stormwater
management strategies and practices in the nation.
• Develop a water quality design standrsd for development and redevelopment.
• Clarify and standardized to the maximum extent practicable the minimum
standards required to meet the City's goals.
• Provide a menu of options and effective tools for designers and engineers to
reduce both stormwater quality and quantity impacts, and protect downstream
azeas and receiving waters.
The most significant changes to the design criteria include:
• An improved submittal process. Projects that must be reviewed by the
engineering department will be required to complete a sufficiency checklist and
review this checklist in aPre-Application Meeting with the Development
Engineer prior to submission for a Building Permit.
• Aspen specific rainfall and snowmelt data.
• Treatment for water quality. Sites will be required to capture and treat a certain
volume of runoff, the water quality capture volume (WQCV), to remove
pollutants from runoff before it leaves the site.
• Low Impact Development (LID). It is highly recommended that sites implement
LID or better site design practices. LID encourages the use of natural features on
the site (versus hazd infrastructure), the reduction of impervious azea, and
increased infiltration of runoff to reduce water quantity and quality impacts.
• Detention. Above the WQCV, sites that drain to the City's stormwater
infrastructure will be required to provide detention only if the proposed
development will increase peak runoff or volume from the site in the 10- or 100-
year events. (Detention was required for these events previously.)
• In addition to sites located in the FEMA floodplain, sites located in azeas that
drain greater than 130 acres will now be required to generate the 100-year
floodplain and will be required to meet standrsd FEMA floodplain regulations in
those areas.
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• Sites located within atwo-foot depth of mud during the 100-year mudflow event
will be required to do a mudflow analysis for their property and will not be
allowed to increase the mud depth of the surrounding areas.
Staff engaged the assistance of a Technical Advisory Committee (TAC), composed of
local designers, planners, architects, contractors, developers, engineers, environmental
experts, and citizens, for review and discussion of this updated manual. The TAC met
three times throughout the process to discuss the goals of the update and the new design
criteria and technical guidance. Their comments and suggestions have been incorporated
into this draft. Overall, the TAC is supportive of the updated manual.
Following adoption by ordinance of the updated manual, the new criteria would become
effective January 1, 2010. Training on the new criteria will be offered this fall.
CITY MANAGER COMMENTS:
MEMORANDUM
TO:
FROM:
THRU:
DATE OF MEMO:
MEETING DATE:
RE:
REQUEST OF COUNCIL
Mayor and City Council
John D. Krueger, Lynn Rumbaugh Transportation Dept.
Randy Ready, Assistant City Manager
August 18, 2009
August 25, 2009
Transportation Service Budgeting Work Session
Transportation staff is requesting Council direction on the following budget items at this work
session. Staff will return to Council in the fall with a 2010 budget based on the direction
received.
1. Winter Service Reductions: Should staff make any reductions to winter 2009-2010 transit
service levels? Changes to winter service must be determined by October 10.
2. Budget Assumptions: Is Council comfortable with staff's budgeting assumptions of
solving the Transportation Fund structural deficit through 2013 and addressing the deficit
through operations and transit service reductions?
3. Staff would like the focus of the August 25 work session to be on prospective transit
service cuts. Staff will return with additional operational and/or transit service budget
reduction scenarios based on Council's direction.
PREVIOUS COUNCIL ACTION
•In March, 2009 City Council adopted the 2009-2015 Short Range Transit Plan (SRTP) which
included options for increasing or reducing transit services.
•In March, 2009 City Council directed staff to reduce transit costs by eliminating summer season
service on the Maroon Creek Road (Highlands) bus route.
Page 1
At an August, 2009 work session, City Council indicated that staff should follow RFT'A's lead
on the date for starting commencing winter season service levels. Staff has done so, eliminating
two weeks of winter season bus service for an estimated savings of $65,550. City bus routes,
except for the Galena Street Shuttle will operate on fall season schedules through December 11.
The Galena Street Shuttle will begin service on Thanksgiving Day, to correspond with the
opening of Aspen Mountain.
BACKGROUND
TDM Efforts
The City's Transportation Department is chazged with maintaining 1993 traffic levels in
perpetuity, and has accomplished this goal by implementing an award-winning Transportation
Demand Management (TDM) program that includes free transit, paid parking, carpool matching
and permitting, cazsharing, employer outreach and commuter, resident and tourist education.
The City contracts with RFTA to provide afaze-free, eight-route shuttle system. In addition to
the City helps to fund Music Festival transit service to the tune of approximately $250,000
annually. Year to date system ridership (through May 2009) totals 567,066, 2.8% below 2008.
Staff projects that, by the end of the year, the local transit system will:
•cazry 1.2 million passengers
•log 58,000 hours of service
^travel 541,000 miles
•cost an estimated $4.7 million
Ridership has been growing at a significant pace, with a 39% increase in winter ridership and a
15% increase in the summer over the last four years. Aspen's system costs approximately $3.68
per passenger to operate; slightly less than average when compared to a 2004 transit system
efficiency survey (average of $3.73 per passenger) that compared several Colorado transit
providers. Aspen's routes rank in the following order in terms of percentage of ridership carried
annually:
^Castle Maroon (40%)
^Hunter Creek (25%)
•Cemetery Lane (8%)
•Mountain Valley (7%)
•Music Festival (5%)
•Galena Street Shuttle (4%) •Burlingame/Hwy 82 (4%)
•Cross Town Shuttle (4%)
•Maroon Creek Road (3%)
Page 2
Please refer to Attachment A for more detailed information on each local route.
Transportation end Structural Deficit
In addition to funding transit operations, the Transportation Fund is responsible for the
purchasing and replacement of its fleet of six diesel buses, four hybrid buses, and six 15
passenger shuttles. A bus replacement reserve was established within the fund to accumulate the
monies necessary to replace transit vehicles. The next bus replacement is scheduled for 2013
when six diesel buses will need to be replaced at an estimated cost of $2,360,660. Staff is
assuming that 75% of the replacement costs will come from the Transportation Fund reserve and
that the other 25% of the cosC will come from federal funds.
The Transportation Fund has long straggled to reconcile a structural deficit caused by funding
mechanisms that cannot keep pace with rising costs of transit operations and bus replacements.
To address this problem, City voters approved a 2.1% use tax that took effect in 2008.
Unfortunately, actual use tax collections have fallen short of original projections. Meanwhile,
other transit funding sources continue to decline, while transit operating costs grow by an
average of 6% annually. The addition of the system's eighth route (Burlingame/Hwy 82) in
2008 further widens the gap between revenues and expenses.
If forecasts are correct, a large gap will begin to develop in the Transportation Fund by the end
of 2009. This gap cannot be bridged without additional revenues and/or a reduction in expenses
including transit service reductions. See Attachment C for specific information on transit
revenue sources.
DISCUSSION
Solving for 2013
Trying to solve the Transportation Fund deficit through 2019 in the Long Range Plan
(Attachment D) is impractical as there are too many variables involving the economy and
revenue streams. Staff felt that a more realistic approach would be to try to solve the fund deficit
through 2013, when its next major bus replacement is scheduled to take place. Current estimates
project a Transportation Fund shortfall of $1,226,272 for 2010. The shortfall will continue to
grow in each out year unless funds from current revenue sources significantly increase, a new
Page 3
revenue source is indentified, or a combination of budget and transit service reductions measures
is implemented
Staff analysis shows that with departmental expense reductions in 2010 of about $242,020 plus
other reductions of about $377,732 for a total of $619,752 there would need to be an additional
reduction of at least $480,860 in transit service to show a positive balance in the fund. This
would translate to about 5,527 hours of transit service to be reduced out of an annual total of
58,478 hours or a 9.5% reduction. Assuming that the departmental and other expense reductions
stay relatively constant, transit service reductions will need to increase each year to keep the fund
balance positive until 2013.
Transit Service Reductions
In 2008 and 2009, the Transportation Department undertook a transit planning process, resulting
in a 2009-2016 Short-Range Transit Plan. This plan focused on possible service and facility
improvements as well as service reductions that might be needed in light of a weak economy and
the Transportation Fund's structural deficit. As economic conditions have worsened, staff has
used the SRTP as a starting point for developing additional service reduction scenarios.
Staff has developed a service reduction scenario based on the $404,088 figure discussed above.
The scenario was developed with the goal of trimming service costs by reducing hours,
contributions and/or dates without fully eliminating any routes and by causing the lowest loss of
transit ridership possible. The reduction scenario is detailed in Attachment B and is described
below.
1. Begin Winter Season Two Weeks Late
Cost Savings: $65,550
Aspen bus routes and RFTA valley routes typically commence winter season service levels on
Thanksgiving Day. At its August meeting, the RFTA Board opted to save money by beginning
winter service on December 12. Following suit will save the Transportation Fund a significant
amount with minimal ridership impact. This cost savings measure has already been
Page 4
implemented. The one exception to this delayed season applies to the Galena Street Shuttle
which will operate beginning November 26.
2. Burlingame/Hwy 82 Reduction of Hours -Could Be Implemented Winter 2009-IO
Cost savings: $107,000
The Burlingame/Hwy 82 route provides service between Rubey Park and the Burlingame Ranch
employee housing development. The Burlingame/I-Iwy 82 route operates from lam-l lam and
3pm-7pm during the spring, summer, and fall, with extended hours of service in the winter
season. Eliminating additional service hours in the winter and operating the route from 7am-
llam and 3pm-7pm year-round would save the Transportation Fund $107,000 in 2010.
3. Reduction of Music Festival Contribution
Cost Savings: $50,000
The Transportation Fund contributes $250,000 annually towards the operation of the Aspen
Music Festival & School's bus service between the Castle Creek Road campus and Rubey Park.
This route also diverts to the Music Tent depending on student needs. Reducing this contribution
by 20% would save the fund approximately $50,000 annually. The Music Festival would then
need to choose whether to absorb additional costs in order to maintain its current schedule, or
reduce bus service by approximately 575 hours.
4. Eliminate Galena Street Shuttle Summer Service
Cost Savings: $108,900
The Galena Street Shuttle is a peak season route that makes continuous loops between the Rio
Grande Parking Plaza and Rubey Park/Gondola Plaza. The route's loop also serves the Hunter
Creek complex. In the winter, the Shuttle provides an important link between the Parking Plaza,
where skiers are encouraged to park, and Aspen Mountain. The route could be eliminated in the
summer when weather conditions make walking from the Plaza to town a feasible option.
Service to the Hunter Creek neighborhood and along Mill Street would still be available every 20
minutes via the Hunter Creek route.
Page 5
5. Reduce Cross Town Shuttle Hours in Summer Season
Cost Savings: $18,400
The Cross Town Shuttle travels between the Benedict Music Tent and the Aspen Club & Spa
during the winter and summer seasons only. In the winter, the route operates from Sam-9pm,
with summer hours of 7:24am-1 lpm. Equalizing summer and winter hours would save the fund
over $18,000 while impacting relatively few riders.
6. Eliminate Spring/Fall Service Before 7:30am
Cost Savings: $50,800
In 2002, a previous City Council adopted a transit service plan with reduced hours of service in
the spring and fall. Currently, most routes operate Monday-Friday from lam-12am and Sundays
from gam-9pm in the spring and fall off seasons. This cost reduction option would further trim
off-season hours by eliminating 30 additional minutes Monday-Saturday
7. Begin Summer Season Two Weeks Late
Cost Savings: $65,760
Aspen bus routes and RFTA valley routes typically commence summer season service levels
around June 6 to coordinate with the Chili Pepper & Brew Fest that takes place in Snowmass
Village. This option would extend reduced spring service levels by two weeks.
If the above-outlined service reductions are not sufficient to balance the budget, there are
additional service reductions with greater ridership impacts that can be considered, including:
•Eliminating an entire route(s) •further reducing off-season hours
•Further extending off-season dates •reducing summer and winter hours
FINANCIAL/BUDGET IMPACTS
The combination of budget and transit service reductions proposed in this memorandum will
balance the Transportation Fund through 2013.
Page 6
ENVIRONMENTAL IMPACTS
Reductions in transit service and other TDM programs may increase single-occupant vehicle
trips, resulting in a rise in PM-10 and greenhouse gas pollutants.
RECOMMENDED ACTION
If City Council agrees with staff's budget assumptions and methods of addressing the structural
deficit, staff recommends that the Burlingame/Hwy 82 service reduction be adopted for winter
2009-2010, with other service reduction options considered seasonally.
ALTERNATIVES
Council could direct staff to return with alternative budget scenarios such as
• solving the structural deficit through 2010 only
^ solving the structural deficit through 2019
• analyzing alternative service reductions
• analyzing new revenue options
ATTACHMENTS
A: City Transit Service Detail
B: Transit Service Reduction Scenarios
C: Transit Revenue Sources
D: Transportation Fund Long Range Plan
1. existing long range plan
2. long range plan with possible reductions
Page 7
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