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HomeMy WebLinkAboutAgenda - 04-07-2009 - 6aORANGE COUNTY BOARD OF COMMISSIONERS ACTION AGENDA ITEM ABSTRACT Meeting Date: April 7, 2009 Action Agenda Item No. 6 -Q SUBJECT: Twin Creeks (Moniese Nom Linear Pa rk/G reenwa.y Trail DEPARTMENT: ERCD, Purchasing, P&R, PUBLIC HEARING: (Y/N) No Attorney, Budget ATTACHMENT(S): Proposed Twin Creeks Master Plan Revision INFORMATION CONTACT: David Stanch, 245-2598 Pam Jones, 245-2652 Lori Taft, 245-2673 Marabeth Carr, 960-3880 Geof Gledhill, 732-2196 Donna Coffey, 245-2151 PURPOSE: To consider three actions toward the construction of a linear park/greenway trail at the future Twin Creeks (Moniese Nomp) Park and Educational Campus site: 1) approval of the project and revision of the master plan to show the Linear Park/Greenway Trail; 2) amendment of the existing engineering and construction contract for Twin Creeks Park to design the linear park/greenway trail - and exemption of this action from the selection process as provided by Statute; and 3) authorization for the County Attorney and staff to meet with colleagues from the Town of Carrboro to develop a draft Interlocal/Annexation Agreement which would provide for trail construction and annexation for the provision of Town services. BACKGROUND: At the February 10 worksession, the Board received a presentation on the potential construction of a linear park at Twin Creeks [Moniese Nomp) Park and Educational Campus generally along the newly-installed OWASA sewer line. The County's Twin Creeks site is a 193-acre site that includes an educational campus (at present, the new Morris Grove Elementary School) for future educational facilities, and a district - park. The property has road frontage on both on Old 86 and Eubanks Road, and is located approximately 1.5 miles north of Calvander in the Orange County-Carrboro-Chapel Hill Joint Planning Area. At the worksession, the Board asked staff to develop a plan of action for construction of a paved trail connecting the new Morris Grove Elementary *School on Eubanks Road to the south, and return with needed action steps. Staff has identified three actions that would constitute next steps for this project: 1. Formally approve the project, and amend the adopted May 3, 2005 Twin Creeks Master Plan to show the linear park/greenway trail. While the Board provided clear direction on February 10, a formal authorization of intent to proceed with the project is needed. The draft revised Master Plan (attached) substitutes this trail for the "redline trail" that was discussed a ' nd added in 2005. Other trails shown in the master plan are approximate in location and subject to change as park planning proceeds in the next decade. 2. Amend the existing contract with Coulter Jewell Thames (approved in 2007) for .engineering, design, construction drawings and bid documents for Phase I of Twin Creeks Park to reflect the Linear Park as the new Phase I for Twin Creeks (Moniese Nomp). Should the current contract amount not be sufficient to cover the cost of design of the new linear park, additional approval would be sought from the Board. The scope of work would be adjusted accordingly the consultant re-tasked to design a paved trail with benches, etc. Staff also recommends that the Board exempt the project from a new selection process, as provided by the NC General Statues, in order to utilize the existing consultant, who is already very familiar with the site and has conducted some site planning work to date on the park. 3. Authorize the County Attorney and staff to meet with counterparts from the Town of Carrboro to develop an interlocal/annexation agreement. As the Board may recall, the concept of an interlocal agreement with the Town regarding this site had been previously discussed and was in the preliminary stages of drafting. This agreement would address any permit approvals needed for the linear park/greenway trail construction, and develop the process for the Town to annex the trail corridor so that Town services may be provided (and a linkage made in the Town limits between Morris Grove Elementary School and the MI Homes property to the south. This draft agreement would be focused on the new Phase I of the park and would be brought back for County and Town Board review and consideration. These actions will enable planning for the new Phase I of the park to proceed. It should be noted that the proposed linear park/greenway trail would be, for the short-term, a finite trail segment that does not connect to Town greenways to the south. Access to the trail would come only from Morris Grove Elementary School (and discussions will be 'needed with representatives from the school to formalize this access and address parking). The Town of Carrboro currently has a consultant looking at ways to link this proposed trail to the existing greenway network in Lake Hogan Farms or a road connection along a new section of la'ke Hogan Farm Road. Substantial signage at the trailhead (presumed to be the school), along the route and heavily at the southern terminus on the County property would note that this is a 34 mile trail that terminates at the end of the County property, and that private property is located beyond the terminus. The property boundaries would be clearly and heavily marked and trail users advised to return up the trail until such time as a permanent connection to the south is made. The unbuilt portion of the Twin Creeks site is currently managed by the County's Lands Legacy Program as a land-banked future park site. Staff from ERCD and Parks and Recreation would be needed to continue to monitor the site, secure the farmstead buildings, and operate and maintain 'the trail, until such time as it may be taken over by the Town of Carrboro as a greenway. Discussions with Carrboro about the pedestrian bridge will drive the potential project timetable. If the project is approved, staff will return at a future date with a timeframe for trail construction, based on discussions* with the consultant and the Town. FINANCIAL IMPACT: A general estimate of the construction cost for the linear park/greenway trail is $850,000. More detailed estimates would be prepared as construction drawings and engineering work proceeds. Twin Creeks Park has $1.48 million in available funds from the 2001 voter-approved Parks and Open Space Bond. The Board has also discussed the possibility of transferring approximately $625,000 of this amount (originally from the Soccer Superfund portion of the bond) to a synthetic turf field project to be determined. This would leave approximately $850,000 -860,000 for the linear park. Funding for the. engineering and construction drawings contract has been previously deducted from the amount above, and would not further reduce the available funds, with the exception of any increase in consulting fees which may be requested at a later date. Exemption of this contract amendment from the selection process, as provided by NC General Statutes, is proposed. Possible reduction of-the cost for linear park construction may be achievable through federal stimulus funds. or the use of County staff resources and volunteers toward some trail construction. The most substantial single cost associated with the proposed project is the construction of a pedestrian bridge across Jones Creek. Further evaluation is needed to determine the exact nature and cost of the bridge. The general cost estimate presented herein anticipates a more-expensive substantial prefab span bridge. If a smaller type of bridge is appropriate, this would also lower the project cost. RECOMMENDATION(S): The Manager recommends the Board: 1) approve the linear park project as the new Phase I of Twin Creeks Park, and revise the Master Plan accordingly to reflect the linear park as shown in Attachment 1; 2) authorize the engineering/construction drawings contract amendment and exempt this action from the selection process as provided by the N.C. General Statutes; and 3) authorize the County Attorney and staff to begin working with colleagues from the Town of Carrboro to develop a draft Interlocal/Annexation Agreement to address the trail construction and annexation by the Town and provision of Town services. Issue Paper Linear Park / Interim Trail to Morris Grove Elementary via Twin Creeks February 10, 2009 ,Background In late 2008, the Board asked staff to look into a linear park concept using some of the existing funds for Twin Creeks Park from the 2001 Parks and Open Space bond. In January 2009, a letter was received from the Chapel Hill Carrboro City Schools (CHCCS) supporting the improvement of a "dirt trail" or path that exists for walkers but not for children on bikes or in strollers. There is no trail, but staff believes what is being referenced in the letter is the OWASA sewer line easement, which was cleared several months back and is just now starting to come back in grass. On January 22nd, several citizens spoke at the Board meeting in support of a trail connecting to the school. It should be noted that the two concepts above may not be the same. A linear park typically connotes a more "finished" feel, with a paved trail over graded subsurface base, landscaped shoulders and benches and/or picnic tables. A natural surface, mulch or gravel trail may or may not involve the same components. The adopted Twin Creeks Master Plan [allay 2005) envisions two eventual trails in this area — 1) a trail along the west side of Jones Creek that would be part of a futu're Carrboro greenway system, and 2) a more formal school-to-neighborhood connector trail (known as the "redline" trail), which conforms to the OWASA easement in the middle of the property - but veers away from the easement at both ends as it moves north to the school, and south towards to the planned park* entry road. The Town of Carrboro's Parks and Greenways Master Plan reflects a greenway trail ' along Jones Creek. This plan was developed prior to Morris Grove Elementary (and the Twin Creeks master plan), and does not reflect a connection there. The Town currently has a consultant looking at connecting existing trails in Lake Hogan Farms through intervening properties to Twin Creeks. Approximately $1.48 million is unencumbered from the Twin Creeks project budget. This includes prior appropriations for the Phase I park project design and engineering, and stabilization work to the farmstead approved in June 2008. Some of the remaining design and engineering funds could be redirected to a trail project -(if changes to the approved project contract scope can be negotiated), possibly increasing the available funds. The total amount includes funds added to the Twin Creeks project budget from the Soccer Superfund. Approximately $625,000 of that amount is included in the $1.48 million figure above. 0 The Newly Proposed Trail on Twin Greeks Propertv A trail on the Twin Creeks property to connect from the property's southern terminus to Morris Grove Elementary within the sewer easement would span approximately 3350 feet (or 2/3 mile). A trail that conformed to the Twin Creeks master plan "redline" trail would run west of the Jones Creek sewer easement on the southern potion of the site and then east of the easement as it nears the school. A small portion Of the middle of the tw ' o trails are in the same location, but most of the "redline" trail would be outside of the sewer easement. The total distance of the two trails is nearly identical. The attached map shows these different trail concepts. There appear to be two basic options for construction of such a trail either as requested by the schools and/or proposed by Commissioner Gordon (pending Town of Carrboro review and agreement). 1. Option 1 -.An interim natural surface or aggregate ggregate trail that could provide for bike and stroller traffic until a more permanent trail is constructed. 2. Option 2 - A permanent 1 0-foot greenway trail, probably paved. It should be noted that both trails will require a pedestrian bridge crossing over Jones Creek. A permanent structure would likely be a substantial bridge, potentially in terms of both span and thus cost. The Town's greenways plan envisions a greenway trail to serve both transportation purposes as well as leisure use, and discussions will be needed with the Town as to whether an interim bridge is acceptable. Town ordinances (and FIRMA regulations for stream crossings) may preclude the possibility of an interim, less-costly bridge — more information on this possibility will be provided as it becomes available. The long- term vision in the Town's plan for this trail is one that requires grading, paving, subsurface base and other work. This, plus the bridge, will make the permanent version (Option 2) a more costly measure — although the trail surface selection will affect the degree of that cost. It is possible that Option 1 could be at least partially constructed by staff and volunteers (with coordination and oversight), with perhaps an Eagle Scout or community project for the bridge - if this is permissable. Even a rough estimate of the cost for this option is difficult to determine, pending clarification from the Town of Carrboro on the standards and grading that would be required (and whether other federal floodplain certifications may be needed for the bridge). The cost will greatly hinge on what type of bridge and associated grading is required, if this version would be permitted in the sewer easement and stream buffer at all. Option 2 would require construction by a professional firm, grading and subsurface work and edging along the trail, and a more permanent bridge. If the surface is a paved trail, this type of trail on the Twin Creeks site would cost an I estimated $850,000 (including the permanent bridge spanning the floodplain as a substantial part of the cost). If the permanent trail could be a natural or fine gravel surface instead, this could reduce the cost. There may also be some potential for community or volunteer assistance in this project, although at a considerably lesser degree than the interim trail option. Park benches and trash receptacles placed along the route would add to the cost — but these are not substantial costs and may be accomplished for less than $10,000. Note: With the installation of the sewer line and the possible willingness of the Town to consider a greenway in the sewer easement, an opportunity now exists to revisit whether the "redline" trail and a greenway trail inside the sewer easement are both needed, or whether one will suffice. Preliminary conversations with OWASA staff indicate the potential for location of the trail within the sewer easement, pending further discussion, with the understanding that provision for repairs to the sewer line will be needed .- which could impact or damage the trail. ,Key Issues, Questions and Potential Benefits There are three basic issue categories that must be addressed to implement this idea: 1. Connection/Parking Issues 2. Cost/Town Approval Issues 3. Operation, Maintenance, Security and Safety Issues. Questions /Issues Lack of Connection to South/Parking — The County's Twin Creeks property does not connect to Lake Hogan Farms. Any trail would need to traverse and have the legal agreement of other properties (as shown on the attached map). The Town of Carrboro indicates they are currently engaged in greenway planning that could result in discussions with these property owners, but the timing of this is not currently known. Until there is legal access and a trail on one of these properties, any trail built on the County's land would terminate onto private property and not connect to the south. A possible interim solution could involve a looped end to the trail at the southern end of the Twin Creeks site, where benches and perhaps signage might be situated, with trail users then returning to Morris Grove School along the trail. It is assumed that any parking needed for the trail use would come from the school parking lot. Cost /Town Approval Issues -- Sufficient funding may exist to construct the linear park as a 10 -foot paved trail with span pedestrian bridge on the Twin 7 Creeks site — and still allow for the potential use of Soccer Superfund monies elsewhere. As noted above, a paved version of a permanent greenway trail is estimated to cost approximately $850,000. However, the Town of Carrboro .will need to answer several questions in order to evaluate this further. • Will the Town insist on this type of paved trail, or allow for the less- expensive Option I (an interim trail in the easement and stream buffer)? Either option may require waiving some stream buffer rules and other ordinance provisions (and perhaps federal floodplain exemption). • How much additional grading and subsurface work will be required (which significantly increases costs) for a non-paved interim trail? Will the trail be required to be ADA-accessible (this affects the trail surface decision)? , Will the Town allow for an interim (Eagle Scout-type) bridge in the short- term? Can this be accomplished in advance of the future approval process for the park? An interlocal agreement for this project may be an option. Operation, Maintenance Security and Safety Issues — An assessment will be needed to determine whether sufficient staff exist to monitor and maintain the trail on the Twin Creeks site. This assessment would also need to address the operational costs and expectations. Additionally, the trail is considerably removed from Old 86 and is in a wooded, undeveloped natural corridor — with no road connections at present. Will this create safety issues? Finally, a trail in the sewer easement would link in the middle of the site to the old farm road, which leads to the barn and outbuildings (where stabilization work is underway). Will this create security concerns for the buildings, or liability and increased vandalism potential.? Possible Benefits Showing Results from the 2001 Parks and Open Space Bond — As recently noted, Twin Creeks is the one project from the 2001 bond where no activity is underway toward construction or opening of the facility (there is work underway on building stabilization). Constructing a linear park and trail within the sewer easement would show results from the bond funds, likely within the currently available funds. Coordination with the Master Plan — A trail in the sewer easement is not inconsistent with the master plan, but was not envisioned to be the main connection to the school. However, the sewer easement may have presented an opportunity to revise the plan. If a trail is not within the sewer easement, the northernmost and southernmost segments of the trail must be designed in a way mindful of the future school facility and park construction on the site, to ensure the trail is not located in a way that constrains future plans. I Town and/or Community Participation — The construction of a permanent trail (designed for transportation as much as leisure) connecting Lake Hogan Farms to Morris Grove Elementary is a broader function than serving Twin Creeks Park and educational campus, and more a pedestrian corridor serving a larger northern. Carrboro community need. Should the Town participate in the cost and construction of such a greenway? Should the Town maintain and operate the trail? Additionally, there appears to be community sentiment toward volunteer assistance in the trail construction, which could lower the project cost. Possible Options for Linear Park 1.. Ask Town to Allow Approval and Construction of an Interim Trail (using existing funds — Option 1)? 2. Pursue Permanent Greenway Project (perhaps with Town financial . assistance requested - Option 2)? A recommendation on the type of trail surface for both options will substantially affect cost, and help inform discussionsInegotiations with the Town. "No-Build" / Deferral Options 3. Construct Original Trail (Redline Trail) at a Future Date as Shown on Master Plan (when full funding exists)? -4. Defer Project to Phase I of the Park (when additional funds exist)?