HomeMy WebLinkAboutMINUTES - 08131991 - TC.2 T`.
TO: BOARD OF SUPERVISORS i`� / '' C J 1tr
FROM: TRANSPORTATION COMMITTEE Costa
DATE: August 5, 1991 �s.... ...
SUBJECT: NAVY MITIGATION MONIES
SPECIFIC REQUEST(S) OR RECOMMENDATION(S) & BACKGROUND AND JUSTIFICATION
RECOMMENDATIONS
1. APPROVE the attached Navy Mitigation Monies Expenditure Plan.
(see Exhibit A)
2. DIRECT the Auditor-Controller to place the interest generated
from this account starting in July 1, 1990 and all subsequent
years into the Navy Mitigation Trust Fund.
3 . DIRECT the Public Works and Community Development Departments
to continue to work with the City of Concord on the
implementation of a east-west road connection paralleling
State Route 4.
FISCAL IMPACT
The Expenditure Plan proposes policies for allocating revenues held
in the Navy Mitigation Trust Fund and interest earned by this fund.
No General Fund revenues are allocated.
BACKGROUND/REASONS FOR RECOMMENDATIONS
On May 28, 1991, the Board of Supervisors referred to the
Transportation Committee the Community Development Department's
recommendation on use of the remaining funds available in the Navy
Mitigation Trust Fund. On July 17, the Transportation Committee
reviewed the issues concerning the recommended expenditures and
prepared the above recommendations along with the following
justification for these recommendations for the Board's
consideration.
CONTINUED ON ATTACHMENT: R YES SIGNATURE
RECOMMENDATION OF COUNTY ADMINISTRATOR X RECOMMENDATION OF BOARD COMMITTEE
APPROVE OTHER
A.
SIGNATURE(S) : Schroder Tom Torlakson
ACTION OF BOARD ON 3, yy , APPROVED AS RECOMMENDED OTHER X_
The Board discussed the Expenditure Plan. Vince Fletcher of Kaufmann & Broad appeared and
presented a letter requesting a portion of the Navy mitigation fund be assigned to the extension
of Driftwood Drive to Evora Road, suggesting that that extension meets the criteria set forth in
the Plan. The Chair advised that at this time the Board is clarifying parameters and not
allocating to any project. He asked the staff to take the letter under advisement. The Board
determined to substitute "surface road alternatives" instead of "Evora Road Extension" on page 5
of the Plan. Supervisor McPeak expressed disagreement with putting a million dollars into trails,
stating that she did not agree that was a firm commitment up front, and declaring she could not
support that expenditure and so would be voting no on it. Supervisor Torlakson moved approval of
the recommendations including the issue on the trails, with the modification of "surface road
alternatives."
VOTE OF SUPERVISORS
UNANIMOUS (ABSENT I 1 HEREBY CERTIFY THAT THIS IS A TRUE
AYES: �,� (= NOES: 7:r� AND CORRECT COPY OF AN ACTION TAKEN
ABSENT: TL ABSTAIN: AND ENTERED ON THE MINUTES OF THE BOARD
OF SUPERVISORS ON THE DATE SHOWN.
-'O'�
OriqATTESTED 13 , /9�/: Community Development Department d���of
Public Works PhD Batchelor,
eg:County Administrator $(IpwiiQmXW1 AdRlul*dw
Auditor-Controller
County Counsel
2 jwc/cm/navymt2.bos BY DEPUTY
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BACKGROUND/REASONS ,FOR RECOMMENDATIONS - Page 2 Cont.
History
On October 3 , 1989 the Board of Supervisors adopted the Concord'
Naval Weapons Station General Plan Amendment and set forth the
procedure for the ultimate vacation of Port Chicago Highway (see
Exhibit B) . This action was based on a June 21, 1989 Memorandum of
Understanding (MOU) , between the Navy and the County where the Navy
agreed to pay the County a $5 million mitigation fee in exchange
for the road closures. According to the MOU, the County's
compensation is not restricted or limited in any manner so long as
the funds are used directly or indirectly to mitigate
transportation impacts from the road closures.
The October 3rd action by the Board established a trust fund for
deposit of the $5 million in mitigation funds to be administered by
the Community Development Department, and limited the use of this
fund "to transportation purposes in the general area of the Concord
Naval Weapons Station. " The Board further directed the Public
Works and Community Development Departments to initiate studies on
the "completion of the collector road network in the area as
outlined in the General Plan Amendment. "
During those discussions individual supervisors expressed positions
that $250, 000 of these monies should be set aside for rail transit
studies and that $900, 000 to $1, 000, 000 be reserved for trail
purposes. While not part of any official Board action, staff
utilized those suggestions as parameters for expenditures from this
fund. Subsequent Board action authorized the following
expenditures from the trust fund: 1) $10, 000 for the County's share,
of the De Anza Trail Study; 2) $25, 000 to Schiermeyer Consulting
Services for the Regional Rail Feasibility Study; and 3) $264, 000
reimbursement to the developers of Subdivision No. 7152 (Sea
Breeze) for widening Evora Road.
The County Administrator's Office urged that an Expenditure Plan be
prepared before additional allocations are 'authorized from the
trust fund. 'The Community Development Department prepared the
Expenditure Plan in May. The remainder of this report analyzes the
proposed Expenditure Plan's recommendations. Please be aware that
the Expenditure Plan apportions revenues for certain purposes, but
authorization of specific expenditures must follow the procedures
outlined in the Expenditure Plan. These procedures require
additional action by the Board before monies can be spent.
It needs to be mentioned that there has been ..some confusion among
agencies commenting on this issue between the $5 million in Navy
mitigation monies -and, a similar amount of demonstration funds being
utilized to lower and widen State Route 4 over the Willow Pass
grade. Once it was made clear to commentors that these were
different projects, many of the issues resolved themselves.
Evora Road Extension
Four million dollars is allocated to the extension of Evora Road to
Port Chicago Highway. This extension was initially recommended by
the Federal Highway Administration in response to the Board's
rejection of the Navy's initial request to close the road in 1973 .
This recommendation is supported by the County's EIR for the
Concord Naval Weapons Station General Plan Amendment and Road
Vacation. Page 55 of the DEIR states "Closure of the Port Chicago
Highway would eliminate an important alternative travel route for
persons who do not wish to travel on the freeway. No alternative
through routes would be available. Secondary access to the
Martinez County Government Center would be eliminated. An
alternative emergency vehicle link would be eliminated. . . . "
As part of it's October 3rd action, the Board adopted findings that
included construction of an east-west road parallel to State Route
4 as a viable alternative to the road closures. Traffic studies
conducted as part of the State Route 4 widening project indicate as
many as 10, 000 vehicles would use the extension of Evora Road by
2005. As stated in the Expenditure Plan, recommendation of a
BACKGROUND/REASONS FOR RECOMMENDATIONS - Page 3 Cont.
specific alignment will follow completion of ongoing alignment
studies and negotiations with the City of Concord and other
affected parties. Conceptual alignments under study for the new
east-west road are illustrated in Exhibit C.
De Anza Trail and Feeder Trails
The DEIR states on page 25 that closure of Port Chicago Highway
would eliminate the potential for level hiking, bicycling, and
equestrian trails as outlined in the County Interim Trails Plan and
the East Bay Regional Park District 1988 Master Plan. The Board
adopted findings that the loss of an alternative trail alignment is
a significant unavoidable adverse impact of the road closures, and
required a trail alignment study to identify projects to mitigate
this impact.
During the initial negotiations with the Navy on the road closure,
the Navy originally offered a few hundred thousand dollars to
offset the loss of trail usage of the roads to be vacated. They
felt that was the only impact of their project. The Board of
Supervisors objected to that position. The Navy expanded their
mitigation proposals up to $1, 000, 000 to replace trail facilities
and to provide other minor improvements. It is from this initial
Navy agreement to fund trail replacements that the $5 million
mitigation fund ultimately evolved. As stated in the Expenditure
Plan, $1 million is reserved to fund the recommendations of this
study.
Improvements on the north side of State Route 4 have been designed
U.0 to accommodate a regional trail connection between Willow Pass
Road and Port Chicago Highway in West Pittsburg east of Willow Pass
Road and Evora Road in Concord. The road construction budget will
build the trail benches in anticipation that Navy mitigation monies
would fund the paving and fencing. The EBRPD has agreed to
maintain the trail. Up to $450, 000 should specifically be
allocated to this trail project.
The remaining funds should be allocated on a case-by-case basis,
but initial guidance should be that approximately half the funds
should be reserved for the West Pittsburg area and the other half
for the Concord area.
Rail studies
The DEIR indicates that with widening of State Route 4 to eight
lanes, PM peak hour eastbound delay would be comparable to delays
wr observed in 1988 . The -Draft Supplemental EIR for the Lowering and
Widening of State Route 4 over Willow Pass provides more detailed
information on Year 2005 freeway conditions assuming widening of
State Route 4 and the extension of BART to East County. With these
future improvements, AM peak hour freeway speeds at the summit will
be below 40 mph. PM peak hour freeway speeds eastbound at the
summit will be between 40 and 55 mph, dropping below 40 mph east of
Bailey Road.
The Expenditure Plan apportions $250, 000 for rail studies to be
allocated on a case-by-case basis. The purpose of this
apportionment is to examine the potential for future rail
improvements in addition to BART that will provide an alternative
to the anticipated freeway congestion. $25, 000 has already been
allocated to. Schiermeyer Consulting Services for the Contra Costa
Rail Feasibility Study. Preliminary findings indicate the
potential for increasing transit ridership in Eastern Contra Costa
by developing a rail line along the I-680 Corridor that would link
to East County areas via the West Pittsburg BART extension. One
pending proposal is to allocate $20, 000 to Calrail Transportation
Services for identifying funding opportunities for rail
improvements along the State Route 4 Corridor to other regions of
the County and the Bay Area.
BACKGROUND/REASONS FOR RECOMMENDATIONS - Page 4 Cont.
Administration
The administrative costs cited in the Expenditure Plan are
consistent with prior County policy to use project specific revenue
sources to recover County costs in order to reduce the impact on
the General Fund.
Interest Earnings
An additional issue for consideration is the interest on the trust
fund. Since the money was received in February 1990, approximately
$325, 000 has been generated ($184, 000 for fiscal 1989-90; and
$141, 000 for the first half of fiscal 1990-91. ) At full value the
fund is generating interest of approximately $70, 000 per quarter.
Beginning July 1, 1991, this money should be retained by the Trust
Fund. It is hoped that the interest will be sufficient to offset
the estimated costs beyond $5 million dollars (and offset some of
the increased costs from inflation. Interest prior to July 1990
has been used to offset initial administrative costs that include
a $29, 000 advance from 0358 budgets and a $5, 000 advance from 0357
budgets for consultant and staff time expended to obtain the funds.
2jwc/cm/navymt2.bos
EXHIBIT A
NAVY MITIGATION MONEY
EXPENDITURE PLAN
(8-5-91)
This fund was established by the Board of Supervisors to handle the
mitigation monies received from the U.S. Navy in exchange for the
closure of portions of Port Chicago Highway in the Concord and West
Pittsburg area. The closure of this road will eliminate an important
bypass facility to State Route 4 between Central and Eastern Contra
Costa County. The mitigation amount originally funded is $5, 000, 000.
Interest payments will increase the value of this account and should
generate sufficient additional funds to help pay for the projects and
expenses described below.
In order to be eligible for funding from this account the project must
be transportation related and must provide mitigation to the closure of
Port Chicago Highway.
This expenditure plan reflects the money already spent from the Navy
Mitigation fund, the future projects considered for funding, and the
procedures to be utilized to determine project eligibility.
PROCEDURE FOR FUNDING
All projects proposed for funding from this account shall be forwarded
to the Community Development Department for review as to the
appropriateness for utilization of monies from this fund. The request
shall state the relationship of the project to this expenditure plan and
provide estimated costs and a project description. This should be done
early in the conceptual planning process.
Funding recommendations shall be forwarded by Community Development
through the Transportation Committee of the Board of Supervisors to the
Board for action.
Expenditures from the fund shall give priority on facility construction
projects over studies except as identified below. Before charges can be
made against this fund, the project must be authorized according to this
procedure.
The following represents the top priority projects for the expenditure
of funds.
EXPENDED FUNDS
1. REIMBURSEMENTS TO COMMUNITY DEVELOPMENT FOR COSTS OF NEGOTIATING
NAVY AGREEMENT: Reimburse department for costs of Consultant and
Staff time. Consultant costs totalled $29, 000; staff costs,
$5, 000. Revenue was accrued in fiscal year 1989-90 for
reimbursement to be received in 1990-91.
Total Costs = $ 34, 000
1
2 . DE ANZA TRAIL STUDY: A private consultant has been hired to design
the De Anza Trail which begins in Central Contra Costa County and
continues into Eastern Contra Costa County along State Route 4 . In
addition to designing the main trail, the. consultant will propose
alternative connections of many feeder trails in the area. This
study was made necessary by the Port Chicago Highway closure since
the De Anza Trail was originally planned to follow this roadway.
The City of Concord, the East Bay Regional Park District, and the
County shared in the $30, 000 cost of this study. This study is
being finalized currently.
Total Estimated Cost = $ 10, 000
3 . REIMBURSEMENTS TO SUB 7152 FOR OFFSITE IMPROVEMENTS: As specified
in the conditions of approval for Sub 7152 , the County will
reimburse the developer for improvements to Evora Road and Mota
Drive. These improvements will improve traffic flow on the Evora
Road corridor which acts a bypass to State Route 4 .
Total Estimated Cost = $ 264, 000
4. SCS RAIL FEASIBILITY STUDY: On March 5, 1991, at the request of
the Public Works Director, the Board approved a contract with
Schiermeyer Consulting Services (SCS) to assist the County in
identifying the type and variety of fixed guideway transit choices
available to the County. Findings from this study will be
available in August.
Total Estimated Cost = $ 25, 000
Subtotal = $ 333, 000
ELIGIBLE PROJECTS WITHIN TOP PRIORITY
5. EVORA ROAD EXTENSION: The Concord Naval Weapons Station General
Plan Amendment indicated the need for a replacement collector
roadway connection between east and central County at the western
end of Evora Road. That plan amendment indicated two (2) potential
alignments; one immediately north of State Route 4 and the other
continuing along the Contra Costa Canal connecting into Medburn
Street in the Community of Clyde. The plan amendment further
directed that the Community Development and Public Works
Departments undertake a conceptual design study on these two (2)
alternatives. This has been done and these concepts have been
discussed with the Clyde Community. Discussion between County and
Concord staffs have been initiated to determine the feasibility of
this route across portions of the Concord Golf Course.
2
The ultimate development on the "Lesher property" at the western
terminus of Evora Road may impact the selection of the appropriate
alternative. At this point staff is hesitant to recommend a
preferred alignment until these discussions are completed. It is
recommended that monies from this account be reserved to build this
important subregional connector and that discussions with property
owners and Concord continue unitl a recommendation can be made.
Thus, an eastwest bypass to State Route over the Willow Pass Grade
will be restored. Additional sources of funding may be required to
fully fund this project.
Estimated Project Cost = $3,930, 000
EIR = $ 70, 000
Total Estimated Cost = $4, 000, 000
6. DE ANZA TRAIL PLUS FEEDER TRAILS: The proposed Delta De Anza Trail
will provide the only Class 1 bike trail between Central and
Eastern Contra Costa County. Phase 1 of the trail begins at the
Walnut Creek Flood Control Channel and continues over the Willow
Pass Grade (parallel to Highway 4) into West Pittsburg. A two-mile
segment of Phase 1 (over the Willow Pass Grade) is proposed to be
built with Navy money.
In addition, many feeder trails are proposed to access this Class
1 trail. This trail will provide non-vehicle access to many parks
and community facilities between Concord and East County. Once the
final cost of the original 2 mile segment is resolved, allocations
to other trails segments can .be' initiated. .
Total Estimated Cost = $ 450, 000 De Anza Trail
(Willow Pass)
$ 550, 000 Other Trails
_ -$1, 000,.000
7 . COMMUTER RAIL STUDIES: A total of $250, 000 is allocated to rail
studies, $25, 000 has already been used for the SCS Study. This
project will promote the development of alternative modes of
transit in Contra Costa County. Included in this analysis will be
increased rail service between Eastern County Contra Costa County
and other parts of the County and Bay Area.
Projects shall be applied for as outlined in the Procedures for
Funding section of this plan. A second study to be considered for
future funding is a $20, 000 contract with Calrail transportation
services for monitoring and reporting on rail improvements and
funding programs that would enhance rail service in the County.
Rail Studies = $ 225, 000
3
8. ADMINISTRATIVE COSTS: This item allows staff of the relevant
County departments to charge back costs for time actually spent in
administration of this account. Other staff charges for specific
projects authorized under this fund will be charged against those
projects subject to the approval of the Community Development
Director.
Total Estimated Cost = $10, 000
4
SUMMARY OF COSTS
FUND• ($5, 000, 000)
EXPENDED:
De Anza Trail Study = $ 10, 000
Sea Breeze Adjustments = $ 264, 000
SCS Rail Study = $ 25, 000
Subtotal = $ 299 , 000
PRIORITY•
Evora Road Extension = $4, 000, 000
De Anza Trail Improvements = $1, 000,000
Rail Studies = $ 225, 000
Administration = $ 10, 000
Subtotal = $5,235, 000
Total Proposed Expenditure of Fund = $5, 534 , 000
Surplus (Deficit) _ (534, 000)
INTEREST: ($70,000 per quarter)
Expended (Interest earned in FY 1989/90)
Navy Negotiated Costs = $ 34, 000
Administration Reimbursement = $150, 000
$184, 000
Committed (Estimated interest earned beginning in FY 90/91)
Proposed to offset costs of top priority items = $570, 000
itrns/cm/navymit2.pin-
5
ex++(a(r g
.O: BOARD OF SUPERVISORS
Thom: Harvey E. Bragdon Contra
Director of Community Development Costa
)ATE: September 28, 1989 County
,UBJECT: Concord Naval Weapons Station
iPECIFIC REQUEST(S) OR RECOMMENLATIONS(S) BACKGROUND AND JUSTIFICATION
RECOMMENDATIONS
1. Adopt Resolution 89/652 approving the amendment to the
County General Plan as described in the staff report except as
modified in the September 12, 1989 Board Order on this subject
and instructing that it be included into one of our combined
plan amendments for 1989.
2. Adopt Resolution 89/655 approving the vacations of
portions of Waterfront Road, Port Chicago Highway and all of
Main Street. Such vacation shall not be effective until the
terms and conditions of the MOU are met.
3. Approve the CEQA findings on this project which are Attachment
- _ . A to the resolution approving the General Plan Amendment.
- 4. Authorize the Chairman of the Board to sign appropriate
documents for the transferal of all real estate interests
including, but not limited to the lease (AttachmentA.), quit
claim deed, and any other documents necessary to complete the
terms of the MOU.
5. Authorize the County Administrator and the Director of Office
- of Emergency Services to sign a long-term access agreement
with the Concord Naval Weapons Station. (Attachment B.)
CONTINUED-ON ATTACHMENT: R YES SIGNA
75.
RECOMMENDATION OF COUNTY ADMINISTRATOR RECOPUMMA OF COMMITTEE
APPROVE OTHER
SIGNATURE(S):
ACTION OF BOARD ON October 3. 1989 APPROVED AS RECOMMENDED X,._ OTHER _
VOTE OF SUPERVISORS
I HERESY CERTIFY THAT THIS IS A
UNANIMOUS (ABSENT 1 TRUE AND CORRECT COPY OF AN
AYES:I , III IV, V NOES: ACTION TAKEN AND ENTERED ON THE
ABSENT: ABSTAIN: MINUTES OF THE BOARD OF
SUPERVISORS ON THE DATE SHOWN.
i
cc: Community Development ATTESTED October 3, 1989
CAO PHIL BATCHELOR, CLERK OF
Auditor-Controller THE BOARD OF SUPERVISORS
County Counsel A7 COUNTrs"L
NIATOR
Public Works
Concord Naval Weapons Station BY , DEPUTY
JWC/jb/M4/navlweap.bos
6. Establish a trust fund for transportation purposes for deposit
\ of the $5 million in mitigation funds. Those monies shall be
administered by the Community Development Department and shall
be limited to transportation purposes in the general area of
the Concord Naval Weapons Station.
7. Reaffirm all additional, recommendations found in the staff
report and as outlined on the September 1 1989 Board Order on
this item.
8. Direct the Community -Development and Public Works Department
to initiate studies on determining the appropriate road
alignments for completion of the collector road network in the
area as outlined in the General Plan Amendment.
9. Formally request the California Highway Patrol to continue law
enforcement during the interim period and during periods of
public use during emergencies.
FISCAL IMPACT
The closure of these roads will reduce the County maintenance costs
(after approximately 5 years). The County shall receive $5 million
in mitigation funds for transportation purposes.
BACKGROUND JUSTIFICATION
On September 12, 1989, the Board indicated its intent to adopt the
Concord Naval Weapons Station General Plan Amendment and associated
vacations, with minor versions to the staff proposal. Recommen-
dations 1 and 2 follow through on that direction.
Recommendation 3 deals with proposed CEQA findings which have been
prepared by the Navy and County staff consistent with Board
indicated direction. The short-term lease has been developed under
the direction of Bill Gray, our consultant, to handle the 5 year
.interim period after vacation when the County wishes to keep the
road open to the public. A committee from the Community _Develop-
ment Department, County Counsel's Office, the Navy and Bill Gray .
worked out this lease.
The long-term agreement has been developed based on a meeting
sponsored by the Office of Emergency Services. In attendance were
County staff along with public protection agencies serving the
area. With the transfer of funds to the County, a trust fund needs
to be established to handle disbursement of the monies. Adminis-
tration of the trust fund will be handled by the Community Develop-
ment Department with uses limited to transportation purposes in the
general area.
The closure of these roads will trigger the need for the County to
proceed on subsequent implementation measures which can be resolved
via recommendations 7, 8, and 9.
TO
FROM C.C.C.PUBLIC. WORKS
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August 13, 1991
Clerk of the Board
651 Pine Street
Martinez, CA 94553
SUBJECT: NAVY MITIGATION FUNDS - PORT CHICAGO HIGHWAY
Supervisors :
We are addressing you to request that a portion of the Navy
mitigation funds for the closure of Port Chicago Highway be
assigned to the construction of the Driftwood Drive extension
from Pacifica to Evora Road.
We have read the pertinent staff reports , and feel that this
project meets the criteria set for expenditure of the funds .
This arterial roadway link will carry traffic from the West
Pittsburg area to Evora Road, including bicycles and pedes-
trians . It includes a feeder link to the De Anza Trail and
is a significant part of the collector road system in the
area .
This is a construction project , planned for ground breaking
in the Spring of 1992, not a theoretical study .
The allocation of $264 ,000 to the SeaBreeze project for im-
provements to Evora Road and _Mota Drive provides a precedent
for using this fund for local roadway projects , if they have
a relationship to provision of an alternative route to SR4 .
The -,Driftwood Drive extension has been estimated to serve
over 6 , 000 trips per day with only 40% being generated by the
subdivision through which it passes . The remainder will be
regional traffic headed between East and West County .
The 2 . 8 million estimated cost of this road project represents
a burden of $9, 400 per home on this affordable housing devel-
opment . A portion of the cost contributed from the Navy fund
would relieve this burden and improve the feasibility of this
project and insure Its, cons,tructi`o.n g
It is our feeling that th.e Driftwood Dx-±,ve extens ion -meets, tb.e.
criteria set for th.e allocation of Navy -mitilgati:o.n money, and
we request that a portion of the cost of this roadway be paid
from the fund.
RECEIVED
Vince Fletcher
Kaufman & Broad
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