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HomeMy WebLinkAboutAgenda - Read Before Packet - 4/22/2014 - Joint Meeting: Fort Collins And Loveland City Councils And Fort Collins-Loveland Airport Agenda - April 29, 2014Joint Meeting: Fort Collins and Loveland City Councils and Fort Collins-Loveland Airport Tuesday, April 29, 2014 5:00 PM Airport Modular Building 4900 Earhart Road Loveland, CO 80538 5:00 p.m. Dinner Served 6:00 p.m. Joint Meeting Agenda Airport Strategy Airport Governance Police Training Jason Licon Darin Atteberry, Bill Cahill Ken Cooper 25 min 25 min 15 min Other items Adjourn Additional Information The Cities of Loveland and Fort Collins are committed to providing an equal opportunity for citizens and do not discriminate on the basis of disability, race, age, color, national origin, religion, sexual orientation or gender. The Cities will make reasonable accommodations for citizens in accordance with the Americans with Disabilities Act. For more information, please contact the ADA Coordinator at bettie.greenberg@cityofloveland.org or 970-962-3319. City Councils Meeting Agenda Page 1 of 2 4900 Earhart Road  Loveland, Colorado 80538 (970) 962-2852  FAX (970) 962-2855  TDD (970) 962-2620 MEETING: Joint Fort Collins & Loveland City Councils MEETING DATE: 4/29/2014 AGENDA ITEM SUMMARIES: Airport Strategy The Airport and staff from both Cities are working on a Loveland City Council priority to develop an economic development strategy for the future development and prosperity of the Airport and the land areas surrounding it. The strategic planning process utilized a community engagement model that has been used on various other successful strategic planning processes. The objectives of this process will be presented for discussion and direction. Airport Governance As part of the “action plan” component of the Airport strategic planning exercise, the City Managers of Loveland and Fort Collins were asked to take the lead on developing a new governance structure for the Airport. The governance issue includes (1) what the board structure should be, and (2) what amount of authority the board should have. The consensus of the Airport Strategy was that the existing Airport Steering Committee structure is not sufficient to take the Airport into the future, mostly due to lack of authority (most decision items have to return to the two separate City Councils). The concept proposed is an Airport Commission, with the Commission having more powers than the current Steering Committee in the areas of leasing, contracting, and other obligations. The Commission itself would include the existing Steering Committee members (the two Mayors and two City Managers), and would add three additional members to be selected by the two Councils. Regional Training Campus In the summer of 20 , the Cities of ort Collins an o elan egan a collecti e effort to esign an e ent ally il a regional training camp s for law enforcement. The design team blends local development expertise with national experience building police training centers. Following a site selection process, the Fort Collins-Loveland Airport was chosen with focus on the southwest portion of the Airport campus. Early programming and data collection has resulted in a campus expected to be about 40 acres in size, and City of Loveland Council Meeting Agenda Page 2 of 2 includes indoor pistol and rifle training, a driving course, a street grid, and many other tactical training features. The project can be phased across multiple years, with an anticipated total capital investment of about $12M per City. The desire is for outside user agencies to help fill the campus capacity by paying to use its many training opportunities. With support from both Loveland and Fort Collins Councils, total project completion is expected in late 2017. REVIEWED BY CITY MANAGERS: LIST OF ATTACHMENTS: 1. AIRPORT AREA ECONOMIC DEVELOPMENT DRAFT STRATEGY 2. AIRPORT GOVERNANCE STRUCTURE 3. REGIONAL TRAINING CAMPUS Work Completed The Airport Area Working Group Strategy identified these key recommendations for the Airport Purpose and Future Vision: Airport Purpose Support the regional transportation system and drive economic opportunities in Northern Colorado. Future Vision • The Airport is the front door and first impression to visitors of Loveland, Fort Collins and Larimer County. The Airport will reflect the regional values and vision of the communities it serves. • The airport will have an impressive gateway. • There will be compelling signage and advertising to the 3 million travelers on I-25. • The Airport has a thriving general aviation community. • The Airport has a clear, compelling role in our region and is playing a critical role in our region’s economic health. • Loveland and Fort Collins are aligned in attracting new businesses that would utilize Airport resources. • The Airport is a part of an active multi-modal system that integrates air, highway, rail, and cargo transportation. • The Airport has excellent physical facilities and infrastructure, a high quality fuel service provider with hanger facilities and exceptional service, and an excellent scheduled air service supporting over 10,000 enplanements per year. • We have facilities that service aircraft with turbine maintenance services, a quality restaurant, and an air museum. • The airport has based aircraft manufacturers attracting high quality jobs to the region. The Airport Area represents a development zone that has a tremendous amount of potential for future development. The recent loss of the Airport’s only commercial air carrier has focused attention on the Airport Area’s economic development opportunities. This focus has led the Cities of Loveland and Fort Collins to direct staff to deliberately and specifically prioritize this area in the two Cities’ economic development plans and create a strategic process with private sector participation, which has brought forth new ideas for consideration. Draft Airport Area Economic Development Strategy Airport Area Economic Development and Land Use Conceptual Strategy Map Compatible Land Use Within the Airport Area there is a diverse mix of land use that in order to maintain a healthy and high functioning transportation center, requires compatible development surrounding it. Airport Area Development Through the utilization of existing planning information, and the recommendation and input of the Airport Area Working Group, an airport area development map was created. This was done in order to identify where potential development opportunities may exist and be placed in a manner consistent with existing developed areas and transportation resources. The map identifies locations within the Airport boundaries for aviation and non-aviation development opportunities, and the various categories of development areas that surround it. One of the Airport’s primary assets is undeveloped land. It is because of this resource it is critical to ensure that it is developed in a way that is consistent with existing and future demand. Adjacent undeveloped land has also been identified as requiring land use compatibility with airport operations. Strategies Tactics Protect against residential encroachment on the airport. 1. Staff of each City meeting with Larimer County to identify goals and objectives, create a plan of action, and conclude with the formation of a new IGA for land development within the airport influence area. Create a sustainable business model with potential revenue streams and financing for FNL. 1. Develop an educational presentation exploring airport finance and regulations including a 10 year forecast 2. Benchmark other airports 3. Clarify the market and users 4. Address challenges relative to the existing Through The Fence agreement Encourage immediate private capital projects. 1. Explore the potential of an aviation cluster consisting of a public private partnership 2. Explore RFP for airport development 3. Explore a Charter Flight Service or Airline Guarantee program Revise the Airport governance structure and authority for the governing board. 1. Create a concept for approval by both councils 2. Move through approval process 3. Open conversation with other public entities to explore regional partnership opportunities Rebrand the Airport and more productively engage the public. 1. Build out our current master plan visually 2. Explore rebranding of the Airport to create an enhanced regional identity Strategy To: City Councils of Fort Collins and Loveland From: Darin Atteberry, City Manager, Fort Collins William D. Cahill, City Manager, Loveland Date: April 18, 2014 Subject: Airport Governance Model Summary As part of the “action plan” component of the Airport strategic planning exercise, the City Managers of Loveland and Fort Collins were asked to take the lead on developing a new governance structure for the Airport. The governance issue includes (1) what the board structure should be, and (2) what amount of authority the board should have. The consensus of the Strat-Op was that the existing Airport Steering Committee structure is not sufficient to take the Airport into the future, mostly due to lack of authority (most decision items have to return to the two separate City Councils). The concept proposed is an Airport Commission, with the Commission having more powers than the current Steering Committee in the areas of leasing, contracting, and other obligations. The Commission itself would include the existing Steering Committee members (the two Mayors and two City Managers), and would add three additional members to be selected by the two Councils. The concept is presented to the joint meeting of the Fort Collins and Loveland City Councils on April 29, 2014. Introduction The airport is jointly owned and operated by the cities of Loveland and Fort Collins; full control and decision-making authority is placed with the City Councils of both cities. Under the current governance structure, the Airport Steering Committee is charged with facilitating communication between the cities and advising the Councils concerning Airport issues such as general policies, land use, budget, capital improvements and strategic planning. Since commencing operations in 1965, the airport has tried a range of governance structures, including an Airport Board, Ad Hoc Committee, Airport Authority and Joint Steering Committee. The 1994 Intergovernmental Agreement set up an Airport Steering Committee made up of the Mayors and City Managers from each City, an Airport Liaison from each City and the Airport Manager. There are both benefits and drawbacks to this structure: Pro • Full control and decision-making authority remains with the City Councils of both cities; each city is assured of control of Airport assets and operations • Steering Committee members serve as a communication link between the Committee, Airport staff and the City Councils; the Committee advises the Councils on policies, land use, budget, capital improvements and strategic planning • The Steering Committee is an effective sounding board Con • The Steering Committee has no voting authority; decisions go to two sets of elected officials • Separate City Charters, processes and decision-making approaches by each of the cities have led to Airport staff spending increasing amounts of time on administrative issues; there are two sets of City staff members reviewing documents, two City Councils making decisions, two organizations with which to communicate, etc. • The current approach handicaps the ability to make timely decisions and react accordingly when emergency issues arise. • The IGA requires the two cities operate under a joint Administrative Rules document, but none currently exists. This needs to be developed to further outline the roles and responsibilities of each City. A number of issues should be reviewed and, where appropriate, provisions of the IGA changed to address those issues. These include delineation of strategic/policy decisions and tactical decisions, to allow the Airport Director increased discretion in management; and better definition of the financial contributions and costs for each of the partner cities. Options Previous analysis by Fort Collins and Loveland staff included a search for "best practices" in governance structures. Several alternative structures are possible, as noted below. A. Airport Authority The Fort Collins-Loveland Airport was governed by an Airport Authority from 1983 - 1990, when it disbanded of its own volition. The Authority had six members, three appointed by City Councils on each City. The pros and cons of this structure include the following: Pro • The Authority is charged with serving and making decision in the best interests of both communities • An effective Authority can embody the "Policy Governance" oversight model, directing an Airport Director who is responsible for day to day operational decisions. • The "two-pronged" approach is eliminated and replaced with one centralized Board that is able to make more timely decisions when needed. • Board Members terms can help create continuity in the Board. • The cities maintain ownership of the Airport, appoint Authority members, and have the ability to dissolve the Authority. Con • In order for the Authority to be successful, the two City Councils will need to agree to turn over the majority of decision-making responsibilities for the Airport to the Authority • An Airport Authority might cost more because it would be independent of the Cities and not have the management, financial, legal and other services that have been provided by Cities in the past. • The cities may still have to accept and guarantee the provisions of federal grants for the Airport. B. Airport District In 1990 the Steering Committee discussed whether or not some type of an Airport District with taxing power would be a desirable long-term solution for the Airport. The Committee subsequently decided to work with the State legislature to create legislation enabling Airport Districts with taxing power. This legislation does not exist, thus the Airport District concept is not an option as of this writing. C. One City Assumes Full Operational, Management and Financial Responsibility Another governance structure for consideration is that of one of the two Cities assuming full responsibility for the Airport. The benefits and downsides to this model mirror those of the Airport Authority, with a few modifications as noted below. Pro • The managing City is charged with serving and making decisions in the best interest of both communities • The "two pronged" approach is eliminated and replaced with one City Council that is able to make more timely decisions when needed • Both Cities maintain ownership of the Airport and would have the ability to create a different governance system should this model prove unsatisfactory to both parties Con • The Cities would need to agree upon which City is best suited to manage the Airport and one City Council would need to turn over the majority of decision-making responsibilities for the Airport to its peer City. • Constituents of the non-managing City might be concerned their needs are not adequately represented. Proposed Governance Structure The proposed governance structure is to create a new entity, the Northern Colorado Regional Airport Commission. The Commission will be created by intergovernmental agreement between the two owners of the Airport, the Cities of Fort Collins and Loveland. The structure and scope of the proposed Commission would be similar in many ways to the Poudre Fire Authority and Loveland Fire Rescue Authority. The Commission will be vested with more powers than the current Steering Committee, lessening the need for considerations of individual decisions by the two separate City Councils. The Commission’s board structure will be more inclusive than the existing Steering Committee structure, with its membership determined by the two owner City Councils. Key features of the Commission Board: The Board will be composed of seven (7) members, as follows: (2) The Mayors of Fort Collins and Loveland (2) The City Managers of Loveland and Fort Collins (1) One citizen member appointed by the Fort Collins City Council (1) One citizen member appointed by the Loveland City Council (1) One citizen member appointed by agreement of the City Councils of Loveland and Fort Collins Appointed members will not be required to reside within either of the two cities. The appointed citizen members will serve 4-year terms. The Board will meet monthly to direct the affairs of the Airport. Level of Authority Granted to the Board: The Board shall have power to: 1. Enter into contracts and leases 2. Develop and submit the annual budget of the Airport to the owner City Councils 3. Hire, direct and evaluate the Airport Director 4. Adopt its own bylaws and operating procedures, providing that they do not conflict with provisions of the IGA 5. Set applicable Airport rates and fees 6. Periodically update and enforce Airport Minimum Standards Neither City shall be required to name a staff liaison to the Airport Commission. Airport operations shall be governed by the IGA. The owner Cities retain approval of the annual Budget, and approval of the Airport Master Plan. Implementation Implementation of the new Airport Commission would be by Intergovernmental Agreement (IGA) between the two cities. The new IGA would terminate and replace the existing IGA for the Airport. It is recommended that the City Councils direct staff to develop and present the IGA for action by both Councils not later than September 30, 2014. Regional Training Campus Joint City Council Meeting April 29,2014 PROGRAMMING PHASE General Progress Programming / Needs / Initial Layouts Martin & Martin NEEDS ASSESSMENT - PARTICIPANTS TO DATE ACOUSTICAL ENGINEERS CIVIL ENGINEERS VEHICLE / DRIVER COURSE Troy Acoustics Interact Business Group STRATEGIC OPERATIONS ANALYSIS & DESIGN Track Plan VEHICLE/DRIVER COURSE NATIONAL AUTHORITIES IN TRAINING CAMPUS DESIGN FBI Greeley Windsor Colorado State University Milliken Evans University of Northern CO AIMS Community College OUTSIDE AGENCIES Ault Evans Frederick Eaton Johnstown Timnath Berthoud Dacono Weld County Platteville Lasalle Fort Lupton Larimer County Lafayette Firestone Colorado Parks & Wildlife Fort Collins / Loveland Airport Loveland Planning / Design Review LOCAL AGENCIES SHOOTING  Ranges are short, limited size  Cannot be used for realistic situation, scenario based training  Outdoor – neighbors complaining (Loveland) DRIVING  Limited size at sites, cannot train at proper speeds  Limited availability hampers training  Set-up, tear-down time in a shared area is considerable SITUATION TRAINING / SWAT  Travel to Fort Carson, Pawnee Sportsman Center, Colorado Springs, Cheyenne WY  Limited shooting range size & configuration hampers training  Training in converted storage areas (Loveland) CLASSROOMS  Generally the needs are met, but in dispersed areas in the communities TODAY’S TRAINING ISSUES NEEDS ASSESSMENT Training Components 50 Yard Shooting Range (25 Lanes) 90% 95% 100 Yard Shooting Range (10 Lanes) 90% 95% Fort Collins – Loveland Projected Use M-Sat 8:00 AM – 10:00 PM With Outside Agency Use Added Driving Course 35% 53% Skid Pad Street Grid SWAT / Shoot House 19% 30% Scenario Village 43% 55% Classrooms (3) 92% 100% Mat Room 80% 85% Practical Classroom (Dirty) 1% 1% FC-LV FACILITY USE OUTSIDE AGENCY USE SHOOTING DRIVING SCENARIO CLASSROOM Airport Site Layout Proposed Master Plan Land Use 2 3 1 SWAT 1. Schedule Construction to Match Funding 2. Work From Back of Site to Front Construction Access Construction Access PROPOSED PROJECT SCHEDULE  2016 – Step 1, Build Airport Security  2016 – Step 2, Building Driving Courses  2017 – Step 3, Build Ranges, Classrooms B O Y D L A K E R O A D 3. Proposed Steps:  2014 – Entitlement Process  2015 – Draw Construction Documents REGIONAL TRAINING CAMPUS Outline Program 4/29/2014 Project Component w/ Soft Cost Included Escalation Total With Escalation A. Main Building - Classrooms & Support 7% $5,993,000 $16,919,000 1 Range #1 25 Lanes $6,025,000 2 Range #2 $0 Not in This Phase 3 Rifle Training (100 yd 10 Lanes $3,780,000 B. Shoot House / SWAT $931,000 $997,000 C. Outbuildings $727,000 1. Tower Lane Change Control $63,000 2. Vehicle Building / Driving Offices $664,000 D. Driving Courses $2,322,000 1. Pursuit / Speed Track .9 miles $1,072,000 2/3 length 2. Street Grid - crowned, curbs $700,000 3. Skid Pad - 250' x 400' $550,000 E. Site Improvements $2,477,000 1. Acceleration / Deceleration / Left Turn Lanes $82,000 2. Parking (These are placeholders) $326,000 3. Fire Access Lane $38,000 4. Utilities $269,000 5. Drainage / Water Quality / Earthwork $1,128,000 6. Landscape / Fences $634,000 F. TOTALS $22,255,000 $23,442,000 Financing Alternatives Debt Service and Financing Challenges are Manageable • Annual Debt Service on $11m: • $650K to $900K depending on term and rates • Debt Funding Alternatives: • Sales Tax growth above forecast • Possible use of Marijuana sales tax • Potential BOBII Project – pay cash for a portion, borrow less • Portion of Cost Could Use Reserve Funds: • $2.3M available with Woodward Phase II & IV • One-time Use Tax above budget in 2013 and 2014 • Financing Challenges: • Shared ownership of facility • Leased land • Not considered an essential service • May need to collateralize other facilities Views Views Industrial Area is a visual barrier Electrical Station below raised Boyd Lake Road SITE Boyd Lake Road Looking East Campus Screening Proposed Plan Layout Looking Northwest 1 Programming & Schematic Layout 2 Schematic & Design Development 3 Construction Documents 4 5 Construction  Set the Project Scope Project Execution PLANNING, BUSINESS OPERATIONS PLAN PART A PART B Bid DOCUMENTS & CONSTRUCTION 2014 - 2015 2016 - 2017