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HomeMy WebLinkAboutAgenda - 05-01-2008-5aORANGE COUNTY BOARD OF COMMISSIONERS ACTION AGENDA ITEM ABSTRACT Meeting Date: May 1, 2008 Action Agenda Item No. ~ - g SUBJECT: Authorization of Northern Buckhorn Community/Central Efland Sewer Expansion Project and Conclusion of the Public Hearing for Preliminary Engineer's Report DEPARTMENT: County Manager PUBLIC HEARING: (Y/N) Yes ATTACHMENT(S): County Engineer's Project Report and Projected Timeline INFORMATION CONTACT: County Engineer,- 919-245-2303 Budget Director, 919-245-2151 PURPOSE: To complete the EPA-required (for State and Tribal Assistance Grant funded projects) public hearing on the .proposed project's preliminary Engineer's Report; to approve the project scope; and to address the project's projected shortfall in existing. bond and grant funds. BACKGROUND: Central Efland and Northern Buckhorn Project Update The current project to expand or provide the central Efland and northern Buckhorn communities with access to a wastewater collection system has been on the planning board since January, 2005. The plan to expand sewer service in central Efland to eliminate the health issues posed by a significant level of failing septic systems has been a BOCC goal since the early 1980's. At the outset of this project, it was intended to include not only the areas referenced above, but the water and wastewater systems designated to serve the southern Buckhorn community, the southern portion of the Buckhorn EDD and the Gravelly Hill Middle School as well. The portion of the project serving the southern Buckhorn community, the southern section of the Buckhorn EDD and the Gravelly Hill Middle School .was spun off of the larger project (the grant funding approval process was found to be too lengthy) so that utility services would be available to the Gravelly Hill school, enabling it to meet a Fall of 2006 opening date target. The southern Buckhorn community, EDD and Gravelly Hill Middle school project was completed in early 2007. However, issues involving the capacity of the City of Mebane's Industrial Drive wastewater pumping station to provide service to the initial southern Buckhorn project as well as the upcoming northern Buckhorn community project remained unresolved. The City of Mebane, as of late 2007, has resolved these capacity issues by replacing the existing pumps in the pumping station with higher capacity pumps. The County may now proceed with the northern Buckhorn community as well as the central Efland portions of the overall project. 2 The latest cost estimates for both remaining elements of the project (the central Efland and northern Buckhorn communities are contained within the preliminary Engineer's Report) indicate that the total cost of the project will approach approximately $4.32 million compared to currently available project revenues totaling $2.5 million. This sum exceeds earlier estimates and the project budget by more than $1.82 million. On March 12, 2008, the County Manager shared tentative County debt issuance plans with the Board at their budget work session. Included in those plans was a proposal to include the additional funding for Efland Sewer in a future debt issuance. The Board may also want to consider other project construction alternatives: 1. Reduce the size of the project to fit the budget (this reduction would have to occur in the central Efland portion as the STAG funding was earmarked primarily to address the wastewater system for the Buckhorn Community); or 2. Apply fora 10-year low interest loan from the State Revolving Loan and Grant Fund (these funds, available at a 4% interest rate would be repaid over a ten year period. The costs (or some portion) of repaying this loan could be included in the sewer rate base over the ten-year loan period; or 3. Seek additional funding through the CDBG process (low probability of success) and/or the Rural Communities Assistance Program (moderate probability of success) funding process; or 4. Phase system construction by breaking the central Efland portion of the system down into an initial phase or core (pumping station and some portion of the collection lines and later phase(s) or optional components (remaining portions of the collection lines). The County may also structure the bidding process such that the core system represents the base bid and the optional components become add alternates. Should construction bids come in lower than anticipated, more of the add alternates could be included in the construction project. As the design for the full project has been completed, it should be possible to modify the project documents as necessary to break the system down into core and add alternatives and expand the scope of the project to include the add alternatives, should additional funding become available or bids come in lower than expected. 5. Utilize some combination of the alternatives outlined above as deemed necessary to maximize the project's final service area while minimizing the financial impact on the Efland system's customers or County taxpayers The BOCC consensus that emerged from its discussion and public comment at opening of the public hearing at its April 1, 2008 meeting appeared to be to fund and construct the entirety of project as it is currently conceived with the budget shortFall financed by a planned debt issuance, potentially supplemented by grant funds should any be found to be available. McGowan Creek Pumping Station Update Another potential cost element that could be added to the sewer expansion project is upgrading the equipment in the existing (as of the original Efland sewer project) McGowan Creek pumping station. According to OWASA's standards for replacing wastewater pumping station related equipment (pumps, motor controls, standby power generators, etc.), the useful lifespan of this equipment is in the 15-20 year range. The equipment at the Efland system's McGowan Creek pumping station will be twenty years old as of this summer.. Replacement of this equipment is scheduled in the Efland Sewer System CIP (system operating permit-required) for FY 2010-11. 3 Given the overlapping time frames for construction of the sewer collection system expansion with upgrades to the McGowan Creek pumping station, it may be possible to achieve economy of scale savings by including upgrades as a part of the sewer expansion project. Furthermore,. by having the upgrade take place during the construction project, the pumping station can be upgraded before the additional flow from the expanded service area comes on line and becomes a factor in the degree of difficulty in taking the McGowan station off-line during the upgrade process. The projected cost of this upgrade, assuming the installation of pumps of similar configuration and capacity, is approximately $200 - $250,000. As with the funding shortfall for the proposed expansion, this additional cost can be financed through the planned debt issuance. As a CIP item that will provide service to the entire Efland sewer customer base, debt service for the McGowan Creek pumping station upgrade may also be included in any BOCC approved revisions to the sewer use rate structure for the Efland sewer system. Inclusion of the McGowan Creek pumping station upgrades should have no effect on the project permitting or construction timeline. Should the Board wish to move forward with the McGowan Creek Pumping Station capital upfits as a part of the Central Efland/Northern Buckhorn Sewer Construction Project, staff recommends that the costs be combined with the $1.82 million proposed future debt issuance plans. Rate Study Update Another potential element of project financing relates to the outcome of the ongoing Raftelis rate study commissioned by the BOCC. On March 24t", Raftelis provided a preliminary rate setting model that will allow the County to devise, evaluate and adopt new sewer rates for the Efland system. As the Board considers the rate study; Commissioners may wish to give consideration to dedicating a certain portion of the anticipated sewer system revenues to offset capital and debt costs. The model will allow the County to incorporate system expenses (that may include some portion of the debt service on the capital costs of system expansion) into a rate structure that serves County taxpayers and Efland sewer customers in the most equitable manner possible. FINANCIA<_ IMPACT: Total project costs include $4.3 million for Central Efland/Northern Buckhorn sewer system construction plus up to $250,000 for the McGowan Creek Pumping Station for a total of $4.55 million Funding for the project includes approximately $1.3 million in federal grants (after the State removes its "administrative" fees), plus $1.2 million in 1997 voter approved bonds. The remaining $2.05 million is currently unfunded. Should the Board decide to move forward with full completion of the Central Efland/Northern Buckhorn sewer system construction and the upgrade to the McGowan Creek Pumping Station, staff recommends debt financing the unfunded portion of the project in winter 2009 after the County receives the final bids. RECOMMENDATION(S): The Manager recommends that the Board approve funding of the entire northern Buckhorn Community and central Efland sewer project, as well as the upgrades to the McGowan Creek pumping station, with funding shortfalls financed by funds advanced against FY 2010-11 alternative financing. 4 MEMORANDUM TO: Board of County Commissions Laura Blackmon, County Manager COPIES: Willie Best, Asst. County Manager Pam Jones, Director of Purchasing and Central Services Donna Coffey, Budget Director FROM: Paul Thames, PE, County Engineer DATE: April 23, 2008 SUBJECT: Central Efland Bond/northern Buckhorn community sewer expansion process As per recent presentations to and directives from the BOCC relative to proceeding with the development of the Northern Buckhorn Community and the Central Efland sewer collection system project, the following tasks have been initiated or completed: 1) Project construction plans and specifications have been completed, subject to project scope revisions mandated by review and funding agencies, and 2) The BOCC, at the April 1, 2008 segment of the public hearing indicated a consensus in completing the entire project as a single phase, with projected funding shortfall (approximately $1.7 million) to be funded by borrowing against the FY 2010-11 3) All ancillary permits (NCDOT, erosion control, etc.) have been acquired, and 4) The preliminary Engineer's Report (the document submitted for review and funding agency approval) has been completed, subject to potential project scope revisions mandated by review and funding agencies; and 5) All grant funding requirements related to the project public hearing - advertisement for public hearing; copies of the preliminary Engineer's Report have been placed in locations accessible to the general public and to the projected customer base for the proposed project; public comment received at the April 1, 2008 public hearing; and BOCC discussion of the project scope and financing, and 6) The preliminary Engineer's report has been distributed to the BOCC and key departments, and 7) The preliminary version of the Raftelis Sewer Rate Study model has been received and is currently being evaluated and modified by staff, and 8) Discussions have been initiated with Duke Energy to facilitate the installation of three phase power down to the proposed Brookhollow Rd. pumping station. J~ According to OWASA's standards for replacing wastewater pumping station related equipment (pumps, motor controls, standby power generators, etc.), the useful lifespan of this equipment is in the 15-20 year range. The equipment at the Efland system's McGowan Creek pumping station will have been in operation for twenty years this fall. Replacement of this equipment is scheduled in the operating permit-required Efland Sewer System CIP for FY 2010-11. Given the overlapping time frames for construction of the sewer collection system expansion, it may be possible to achieve economy of scale savings by including upgrading the McGowan Creek pump station as a part of the sewer expansion project. Furthermore, by having the upgrade take place during the construction project, the pumping station can be upgraded before the additional flow from the expanded service area comes on line and becomes a factor in the degree of difficulty in taking the McGowan station off-line during the upgrade process. The anticipated cost of this upgrade, assuming the installation of pumps of similar configuration and capacity, is approximately $200 - $250,000. As with the funding shortfall for the proposed sewer expansion, this additional cost can be financed through borrowing against the FY 2010-11 debt issuance. As a CIP item, debt service for these improvements may also be included in any BOCC approved revisions to the sewer use rate structure for the Efland sewer system. Inclusion of the McGowan Creek pumping station upgrades should have no effect on the project permitting or construction timeline. The BOCC has asked for additional clarification/explanation of the strategy outlined by Budget Director at the April 1St portion of the public hearing, in which the County could essentially "loan" itself sufficient funds to complete the project from the FY 2010/2011 alternative funding issues. The Budget Director has indicated that, at the BOCC's March 12th Budget Work Session, the County Manager shared with the Board tentative County debt issuance plans which contained a proposal to include the additional funding necessary to address the budget shortfall for the full sewer expansion project. The Budget Director has suggested that, should the Board decide to move forward with completion of the entirety of the Central Efland/Northern Buckhorn sewer system construction project and the upgrade to the McGowan Creek Pumping Station, that the staff recommendation would be to debt finance the unfunded portion of the project in winter 2009 after the County receives the final project bids The progress of the sewer expansion project should follow the following outline: • The County must hold a public hearing that has been advertised for at least two weeks on the draft Engineer's report (begun on April 1 and concluding on May 1, 2008. • The Engineer's report is submitted to the NC Construction Loans and Grants Section, which will review the documents and make a recommendation as to whether the project requires the preparation and submittal of additional environmental documents (a formal Environmental Impact Statement [EIS]) or receives a "Categorical Exclusion" meaning that no additional environmental documents have to be prepared. • NC Construction Loans and Grants Section, upon completing its review, will submit the Engineer's report along with its own findings and recommendation to the US Army Corps of Engineers, the US Fish and Wildlife Agency and the NC Office of Cultural Resources for their independent review and comment. • Assuming that these agencies concur with the finding for a Categorical Exclusion, their findings and comments, along with the Engineer's Report, will be submitted to the EPA for its review and release of the STAG funds. • The County will secure the necessary railroad right of way • Once the Construction Loans and Grants Section makes its findings on the Engineer's Report and all necessary changes made and questions addressed, the Consulting Engineer will submit the completed plans and specifications for Construction Loans and Grants review and approval. o When the plans and specifications have been reviewed/revised, if required, and approved, the Construction Loans and Grants Section will authorize the County to advertise the project for bids as soon as EPA approval of the Engineer's Report is given. ® The project will be advertised for approximately six weeks, then bids will be taken. • The bids will be evaluated by staff and submitted to the BOCC for its approval. • The County Attorney and the EPA will review and approve the construction contract and a Notice to Proceed will be issued. ® The construction project will commence and will take some 18 to 24 months to complete. A projected timetable for the events or steps listed above is outlined below. This timetable is based on usual time for reviews and envisions that all review agencies will concur with a Categorical Exclusion finding. If additional environmental evaluation and associated documents are required to be undertaken, submitted, reviewed and approved, additional work will be required; additional review agencies will become involved; and the project timeline will lengthen by an unknown but potentially significant amount of time. PROJECT TIME LINE PROJECTION (unchanged) BOCC approvals initiation of process to advertise and hold a public hearing on the Engineer's Report for the scope of construction for the northern Buckhorn/central Efland sewer expansion project. 2/19/08 BOCC holds public hearing at its first available regular meeting 4/1/08 BOCC directs that scope of project outline in the Engineer's Report be modified or submitted as presented 5/1/08 Engineering Consultant submits unmodified Engineer's Report to NC Construction Loans and Grants Section - or alternatively - 5/8/08 Engineering Consultant submits modified Engineer's Report to NC Construction Loans and Grants Section 5/29/08 Construction Loans and Grants Section completes review of unmodified Engineer's Report and forwards the report and its findings to review Agencies - or alternatively - 8/8/08 Construction Loans and Grants Section completes review of modified Engineer's Report and forwards the report and its findings to review Agencies - or alternatively - 8/29/08 Review agencies complete review of unmodified Engineer's Report and Forward their findings back to the Construction Loans and Grant Section - or alternatively - 10/8/08 Review agencies complete review of modified Engineer's Report and Forward their findings back to the Construction Loans and Grant Section 10/29/08 Engineering Consultant submits unmodified construction plans and specifications to Construction Loans and Grants Section - or alternatively - 10/15/08 Engineering Consultant submits modified construction plans and Specifications to Construction Loans and Grants Section 11/19/08 Construction Loans and Grants Section forwards unmodified reports and findings to US EPA for review and award of grant funding, completed by 1/12/09 -or alternatively -Construction Loans and Grants Section forwards modified reports and findings to US EPA for review and award of grant funding, completed by 2/2/09 County completes purchase of easements in the railroad right-of-way for unmodified project - or alternatively - 1/19/09 County completes purchase of easements in the railroad right-of-way for modified project 2/23/09 Construction Loans and Grants Section authorizes advertising unmodified project for Bidding - or alternatively - 3/2/09 Construction Loans and Grants Section authorizes advertising modified project for Bidding 3/23/09 Bids are opened for unmodified project - or alternatively - Bids are opened for modified project Bids for unmodified project are submitted for BOCC approval - or alternatively - Bids for modified project are submitted for BOCC approval Notice to Proceed issued for unmodified project _ or alternatively - Notice to Proceed issued for modified project Construction complete, system operational 4/20/09 5/11!09 6/2/09 6/23/09 7/14/09 8/4/09 1 /2010-7/2010 If I may provide any additional information or clarification of this information, please advise.