HomeMy WebLinkAboutAgenda - Read Before Packet - 4/29/2014 - Revised Joint Meeting Agenda - Fort Collins And Loveland City Councils And Fort Collins-Loveland AirportJoint 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
HB1375 (Urban Renewal)
Jason Licon
Darin Atteberry, Bill Cahill
Ken Cooper
Dan Weinheimer
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