HomeMy WebLinkAboutAgenda - 09-02-2021; 12-6 - Information Item - Memorandum Regarding Orange County-Durham County DCHC MPO – Durham City Governance Study Interlocal Agreement (ILA) 1
MEMORANDUM
TO: Board of County Commissioners
Bonnie Hammersley, County Manager
FROM: Craig Benedict, Planning Director
Travis Myren, Deputy County Manager
DATE: September 2, 2021
SUBJECT: INFORMATION ITEM — Orange County/Durham County DCHC MPO —
Durham City Governance Study Interlocal Agreement (ILA)
This study is a joint project with Durham County as discussed in our regional connectivity meetings.
This memorandum summarizes the interlocal agreement with Durham City acting as the "local
planning agency (LPA)" of the DCHC MPO regarding an update to the governance of the OCTP and
update to existing implementing agreements using a consultant.
BACKGROUND: The Orange County Transit Plan (OCTP) is undergoing an update to the
2012/2017 plan due to the discontinuance of the Durham Orange Light Rail Transit (DO-LRT)
program. The County has been developing options, reaffirming transit goals, reviewing the financial
plan/model and conducting outreach.
One important element of the updated plan is our close collaboration with Durham County who has
long been a partner in transit goals. Part of the existing update includes a "Regional Connectivity
Element" which develops a background of our common interests and social-economic/demographic
transit needs.
This agreement with Durham County and Durham City as the MPO planning agent will examine the
implementation of the updated plan through other interlocal agreements such as the one created in
2012 between Orange County, DCHC MPO and GoTriangle. These agreements operationalize the
future OCTP as it is implemented on at least an annual basis. The aspects would include but not
limited to; authorizing legislation and requirements, corollary agreements, funding system, reporting
requirements, implementation committee(s), budget processes benchmarks and material change
thresholds that affect the financial model.
Both Orange and Durham counties are paralleling their efforts with this joint agreement. In addition,
we will also bring in a host of other stakeholders in the region including Wake County and
universities. Our existing OCTP Policy Steering Committee (PSC) will be kept apprised of these
efforts as the project moves forward in the later part of this year.
Durham County has signed this agreement and Durham City/MPO will sign on September 9, 2021
after our approval. Atkins Consulting Group has been jointly chosen as the consultant. The ILA and
consultant scope is attached.
FINANCIAL IMPACT: Orange County will be the approving entity for any and all scope related work
to Orange County. Monies for this work have been budgeted through Article 43 Transit Tax in the 19-
20 OCTP/GoTriangle budget. The amount for this contract is less than $55,000 for Orange County's
share. The original appropriation from the 19-20 budget of $500,000 approved in February 2020
covers the cost of the update (Renaissance) and this governance work (Adkins) can be signed by the
County Manager.
Please communicate any questions or concerns to Craig Benedict, Planning Director
(cbenedict(a-)orangecountync.gov or 919-245-2585).
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ATKINS Atkins
1616 East Millbrook Road
Member ofthe SNC-LavalinGroup Suite 160
Raleigh
NC 27609-4968
Ms. Ellen Beckman Tel: +919 876 6888
Transportation Manager Direct No: 919.431.5253
Durham County - Transportation
200 East Main Street, 5th Floor atkinsglobal.com
Durham, NC 27701 snclavalin.com
July 15, 2021
Subject: Durham & Orange Transit Plan Implementation Governance Study
Dear Ellen,
We appreciate the opportunity to conduct a governance study that will result in new Interlocal
Agreements (ILAs) amongst transit plan implementation partners, as well as updated and new
policies and procedures that will give action to the ILAs.
Below is a summary of services that the Atkins team will perform (full detailed scope of work can be
found in Attachment A):
Task 1. Governance Review& Development: The Atkins team will review and understand existing
policies that define governance for current plan implementation needs. The team will also interview
a series of stakeholders made up of staff and elected officials from both Durham and Orange
Counties, as well as GoTriangle and Durham-Chapel Hill-Carrboro MPO. As a result of these
interviews, a series of options for ILA needs will be developed and presented through 4 (four)
workshops (there is an identified optional workshop to exercise during the first half of the study
duration in case further dialogue is needed with stakeholders) with elected officials and staff—with
the goal of seeking adoption by the end of calendar-year 2021. A third-party facilitator will be present
at the joint workshops that involve elected officials, as well as a joint workshop with staff in the latter
half of the Task 1 schedule.
Task 2. Policies & Procedures Manual (PPM): The Atkins team will review and understand existing
policies and procedures that serve the existing ILA(as of July 31,2021),and evaluate needs identified
from workshops/interviews from Task 1 that will inform the need for new and/or updated policies and
procedures. This task will be staff driven by both Durham and Orange Counties, not the elected
officials originally involved in Task 1.
Task 3. Project Management&Quality Control: The Atkins team will perform project management
activities including tracking of critical milestones/deliverables, as well as regular project update
meetings between the consultant team and County staff leads. Atkins team will follow and document
Quality control protocols prior to the delivery of each major deliverable.
Deliverables
Atkins will provide following deliverables:
Task 1 Deliverables
• Report on Current ILA, Policies & Procedures
• Presentation on Current ILA, Policies & Procedures
• ILA Options Report
• ILA Options Report Presentation
• ILA Options Report Addendum: Durham County-Specific
• ILA Options Report Addendum: Orange County-Specific
• ILA Options Report Addendum Presentation: Durham County-Specific
• ILA Options Report Addendum Presentation: Orange County-Specific
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ATKiN S
• Draft Interlocal Agreement
• Draft Interlocal Agreement Report
• Draft Interlocal Agreement Presentation
• Final Interlocal Agreement(s)
• Staff Report Information for Respective Boards/Commissions
• Presentations to accompany Staff Reports for respective Boards/Commissions
• Meeting/Workshop Minutes/Materials
Task 2 Deliverables
• Policies & Procedures Options Report
• Policies & Procedures Options Report Presentation
• Draft Policies & Procedures Manual
• Final Policies & Procedures Manual
• Final Policies & Procedures Manual Presentation
• Meeting/Workshop Minutes/Materials
Assumptions and Exclusions
Scope of work includes detailed assumptions in the `Introductory Information Section.' It does not
include the following items. Any deviations may require contract addendum.
- For in-person meetings/workshops, Durham and/or Orange County staff will provide meeting
spaces and audio-visual devices
- Optional joint workshop noted in Task 1 summary above.
Schedule
Atkins proposes following schedule barring any unexpected delays during QC and revisions.
Task 1 — Notice to Proceed through December 31, 2021
Task 2—January 1 through June 30, 2022
Task 3—Ongoing for project duration
Fee
The project scope will be completed for a lump sum cost of$105,356.54. Summary fee breakdown
is as follows:
Atkins Fountainworks Totals
Task 1 Governance Review& Development $36,389.24 $ 17,750.00 $ 54,139.24
Task 2 Policies & Procedures Manual $ 32,714.60 - $ 32,714.60
Task 3 Project Management&Quality Control $ 13,313.84 $4,500.00 $ 17,813.84
ODCs $ 1,000.00 - $1,000.00
Totals $83,417.68 $22,250.00 $ 105,667.68
Please let me know if you have any questions or need any clarifications. I may be reached at
919.431.5253 or amit.sachan(a)atkinsglobal.com. We look forward to the opportunity to serve you.
Sincerely,
LtV'l ri�zo� `"
Amit Sachan, PE, CFM Adam Howell, AICP
Principal-in-Charge Project Manager
Enclosure:
Attachment A: Scope of Work
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ATKINS
SNC -LAVA►LI N Member of the SK-Lavalin Group
Durham & Orange Transit Plan
Governance Study
Scope of Work
Prepared For:
Durham County
Prepared By:
Atkins North America, Inc.
DATE: July 14, 2021
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1 Table of Contents
Contents
IntroductoryInformation.............................................................................................................4
ProjectBackground.....................................................................................................................4
ProjectGoals................................................................................................................................4
WorkDuration..............................................................................................................................4
Assumptions.................................................................................................................................5
ConsultantTeam.........................................................................................................................5
Scopeof Work................................................................................................................................6
Task 1: Governance Review & Development ....................................................................6
1.1 Project Kick-Off Meeting..................................................................................................6
1.2 Existing Policy & Procedure & Staff Resources Review............................................6
1.3 Initial Stakeholder Interviews..........................................................................................6
1.4 Current ILA, Policies & Procedures Report & Presentation Development..............7
1.5 Peer Interview: Wake County Transit Program ..........................................................7
1.6 ILA Options Reports & Presentations ...........................................................................8
1.7 Joint Stakeholder Workshop #1 .....................................................................................8
1.8 Governance Partners' Staff Workshop .........................................................................9
1.9 ILA & Report Development.............................................................................................9
1.10 Joint Stakeholder Workshop #2...................................................................................9
1.11 Joint Stakeholder Workshop #2.1 ..............................................................................10
1.12 Final Interlocal Agreement..........................................................................................10
Task1 Deliverables ............................................................................................................10
Task 2: Policies & Procedures Manual (PPM).................................................................11
2.1 Review of Task 1 Information & Dialogues ................................................................11
2.2 Existing Protocols & Roles............................................................................................11
2.3 Communications Stakeholder Interviews ...................................................................12
2.4 PPM Options Report & Draft PPM Development......................................................12
2.5 Joint Stakeholder Workshop #3 ...................................................................................12
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2.6 Final Policies & Procedures Manual (PPM) & Presentation Development...........13
2.7 Joint Stakeholder Workshop #4 ...................................................................................13
Task2 Deliverables ............................................................................................................13
Task 3: Project Management and Quality Control .........................................................14
3.1 Determination of Stakeholder Group Members & Roster........................................14
3.2 Project Management Plan.............................................................................................14
3.3 Project Management and QA/QC ................................................................................15
3.4 Progress Reporting and Invoicing................................................................................16
3.5 Subconsultant Coordination..........................................................................................16
Task3 Deliverables ..............................................................................................................0
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Introductory Information
Project Background
Durham County, as well as GoTriangle and Durham-Chapel Hill-Carrboro Metropolitan
Planning Organization (DCHC MPO) approved the first Durham Transit Plan in 2011. Durham
County authorized a referendum be held, and voters resoundingly approved the half-cent sales
tax for public transportation later that year. In 2012, Orange County followed with the approval
of a transit plan and referendum. Both the Durham and Orange plans recommended the
development of the Durham-Orange Light Rail Transit (DO LRT) project. In 2013, Interlocal
Agreements were developed in both counties to guide the implementation of the plans. These
Interlocal Agreements were focused on the shared effort needed for development of the DO
LRT project. The Interlocal Agreements (ILA) were approved by the policy boards of the
counties, the DCHC MPO, and GoTriangle.
In 2019, the DO LRT project was discontinued. Durham and Orange Counties are currently
developing new transit plans to guide future transit investments. Durham County is considering
projects that will serve regional transit needs to Orange and Wake Counties, as well as projects
that serve local transit needs. Durham and Orange Counties have identified a need for new
ILAs to reflect the priorities of the updated transit plans and to consider new roles and
responsibilities among the partners. The purpose of the ILA is to establish a framework for
intergovernmental cooperation and regional coordination in the implementation of each county's
respective plan.
Project Goals
Due to the need to bring forward a new ILA at the same time as the final Durham and Orange
Transit Plans in late 2021 and the need to reach consensus on this important document, the
study participants intend to engage a third-party consultant to provide an objective analysis of
the current process, identify the goals of each agency, evaluate options for roles and
responsibilities that incorporate best practices from other regional transit efforts, and facilitate
discussions among the parties that will lead to a final recommended ILA.
In addition, the work necessary to develop the new ILA will identify policies and procedures that
need to be developed or updated. Current policies and procedures are not well documented or
understood by all participants. The study participants anticipate that the enthusiasm generated
by the updated transit plan will lead to a strong desire to quickly get started on the
implementation of projects. As a result, the study partners desire to create Policies and
Procedures Manual (PPM) to allow for plan implementation to proceed quickly without delays.
The contractor will supplement the efforts of staff in adapting to potential new roles and
responsibilities set by the ILA. The PPM is for use by staff and does not require approval by the
policy/governing boards responsible for oversight of each county's plan implementation efforts.
Work Duration
It is assumed that the study duration will be approximately 12 months from the day the Notice to
Proceed (NTP) is issued.
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Assumptions
• This scope of work assumes that up to three (3) rounds of reviews will be needed for
major deliverables, such as each ILA and PPM guidance document.
• Meeting agendas along with presentation slides, handouts, and other pertinent
documentation for stakeholder workshops will be submitted to Public Agency Leads in
electronic format within ten (10) business days prior to the meeting for review and
comments. Public Agency Leads will review and provide comments within three (3)
business days. Upon receiving comments, Atkins will address the comments and
finalize the documents for distribution to stakeholders.
• For Durham County, it is assumed that all elected officials representing Durham County
& the City Council members on the MPO Board and GoTriangle Board will comprise the
Durham County set of stakeholders. For Orange County, a Policy Steering Committee
will be setup, comprised of a subset of elected officials from Orange County and
associated municipalities as deemed appropriate.
• For Stakeholder Workshops, Policy Steering Committee (Orange County), and special
stakeholder interviews, Atkins will submit agendas, handouts, presentation materials,
etc. to Public Agency Leads 14 days in advance of a meeting. Public Agency Leads will
review the documents and provide comments within five (5) business days. Atkins
project team will address the comments within four (4) business days of receiving them.
Public Agency Leads will review the documents and provide their comments within five
(5) business days of receiving the second submittal. If Public Agency Leads have
additional comments, the Atkins project team will address them within 3 business days
prior to the meeting and will provide Public Agency Leads with the final meeting
materials.
• Atkins project team will provide meeting minutes along with any necessary
modification/update of the presentation materials to the Public Agency Leads within five
(5) business days of the meeting date for review and approval. Once approved, the
Consultant will distribute the meeting minutes and all presentation materials to the
project team and participants of the meeting.
• Public Agency Leads will provide review comments within ten (10) business days of
submittals of draft submittals.
• Submittals will be in electronic format, unless otherwise specified in this scope of
services.
Consultant Team
The Consulting team is composed of the following firms:
• Atkins North America, Inc. (Atkins)
• Fountainworks
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Scope of Work
Task 1 : Governance Review & Development
Definitions:
• PALs - Public Agency Leads (Durham & Orange County Management)
• CFG -Core Facilitation Group (Project Manager, Workshop Facilitator (Task 1
ONLY), & Support Staff)
• EAP - Expert Advisory Panel (Consultant Subject Matter Experts who will
support Project Manager & PALs as needed on critical milestones)
1.1 Project Kick-Off Meeting
An initial meeting will be hosted to allow for introductions and overview of involved agencies and
the consultant team. During this session, the group will determine a full list of stakeholders from
both Orange and Durham Counties (staff& elected officials), as well as to current Staff Working
Group members representing other agencies/organizations involved with transit plan
implementation efforts. These individuals may be planning and program management
professionals, transit agency representatives, general counsel representation and/or designees, as
well as tax district/financial management oversight personnel. The group will also confirm peers
from Wake County for future interviews. These individuals may be representatives from the City of
Raleigh, Capital Area Metropolitan Planning Organization (CAMPO) or Wake County. Also, as a
part of the kick-off, the project team should be prepared to schedule critical meetings/workshops
during period of performance - using the proposed timeline as an initial foundation. Actions
associated with this task tie in with the management components outlined in Task 4.1.
1.2 Existing Policy, Procedure & Staff Resources Review
Stemming from the Project Kick-Off, the CFG will ensure to document and gather all existing
policies and process currently in place that guide existing transit plan implementation efforts. The
PALs will provide all existing documentation to the CFG immediately following the Kick-Off
Meeting. The CFG will review these documents for comprehensive understanding of existing
governance frameworks to help inform next steps of this study initiative. The CFG will begin to
frame and understand the gaps and potential needs to be incorporated into options considered in
the ILA and/or the policies & procedures manual development process. The CFG will also
document the staff resources supported by the transit plan and other staff resources currently used
in the implementation process so as to understand where levels of effort currently exist, where
efficiencies could be realized and where potential to fully utilize an existing resource to fulfill
realized ILA or process needs identified as a part of this study.
1.3 Initial Stakeholder Interviews
The project team recommends a set of initial virtual interviews be conducted with subgroups of
each governance party. Initial interviews will be conducted with the following groups of
stakeholders:
• Durham
o Durham County Commissioners (3 separate interviews of 1-2 Commissioners to
avoid quorum)
o Durham County Staff (at least members from Transportation, Finance, County
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Attorney & Manager's Offices)
o City of Durham Staff
• Orange County
o Orange County Commissioners (3 separate interviews, with 1-3 commissioners to
avoid quorum)
o Orange County Staff (at least members from Planning/Inspections, Transportation
Services, Finance & Manager's Offices)
o Municipal & Transit Representation (Town of Chapel Hill, Town of Carrboro, Town
of Hillsborough, Town of Mebane, Orange Public Transit)
• Durham-Chapel Hill-Carrboro MPO
o MPO Board Members (1 interview— mixing county representation with
commissioners not interviewed with County colleagues)
o MPO Staff
• GoTriangle
o Board of Trustees Members (1- 2 separate interviews with groups of board
members)
o Staff
The CFG and facilitator will coordinate with the EAP and PALs to develop questions that will
capture sentiments based on the existing governance framework, as well as preferences each
stakeholder would like to see and experience with new governance frameworks that support new
plan implementation efforts. Questions should be both universal to general governance, as well as
specific to the governance entity being. This will allow for a comprehensive review of individual and
aggregate issues and needs, while excluding any perceived biases due to the fact stakeholders will
interviewed as independent entities for this task. For interviews with staff directly involved with
plan implementation, questions should also include topics to cover existing processes.
Facilitation will be conducted virtually on an agreed upon platform (i.e. Zoom, Teams, etc....). Each
interview for each governance partner group should last no more than 1 hour.
1.4 Current ILA, Policies & Procedures Report & Presentation Development
The CFG will review the feedback received during Task 1.3 with the EAP and the PALs to then
formulate plans for the Joint Stakeholder Workshop #1. The CFG will review and summarize
common and dissimilar sentiments relative to existing governance frameworks, in both the
aggregate and broken down by County/governance partners, as well as common/dissimilar needs
for future governance frameworks. Outcome from existing policy/procedure review and initial
stakeholder interviews will result in a Current ILA, Policies and Procedures Report. This report will
capture identified existing governance structures, roles, and responsibilities, as well as
corresponding sentiments gathered from the initial stakeholder interviews. A presentation will also
be developed based on this report, as well as a summary from the initial stakeholder interviews.
Outcomes from Tasks 1.4 and 1.6 will be paired in a single presentation to aid in dialogue
facilitation/goals associated with Task 1.7.
1.5 Peer Interview: Wake County Transit Program
While the Initial Stakeholder Assessment is ongoing, the CFG will conduct a series of peer
interviews with members who play a primary role in implementing & governing the Wake County
Transit Program. There should be a total of 4-6 interviews for a duration of 1 hour each. These
interviews should include members from:
Wake County (Long Range & Transportation Planning; Administration)
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➢ CAMPO (Wake Transit Program Management/TPAC Administration; MPO Administration)
➢ Select TPAC (Wake Transit) Voting Members
➢ City of Raleigh (Department of Transportation Management; Administration)
➢ GoTriangle (if necessary based on initial staff interviewees from Task 1.3 - Financial
Management; General Counsel; Communications —focusing on procedural aspects)
➢ Selection of Representatives from both Wake Transit Governing Boards (GoTriangle &
CAMPO)
The CFG will coordinate with the PALs to develop a series of questions for these peer interviews.
Questions should be tailored to specific groups that play a role in overall governance, process
development/adherence, and even communications protocols. The goal will be to capture
perspectives on the current successes and challenges presented by the Wake County Transit Plan
governance frameworks, as well as thoughts on Wake County's involvement since plan
implementation commenced. The feedback gathered from these interviews will be summarized and
paired with the Initial Stakeholder Assessment in preparation for the Joint Stakeholder Workshop
#1. EAP team members may also offer insights to help inform how challenges and opportunities
were resolved through the consultant team's experiences in Denver and Atlanta.
1.6 ILA Options Reports & Presentations
a. Comprehensive Report& Presentation
b. Durham County Addendum Report& Presentation
b. Orange County Addendum Report& Presentation
The CFG will review summaries, key points, and initial takeaways from Tasks 1.2 through 1.5 to
determine viable options that present suggested paths forward for updated language in a new ILA.
The CFG will then discuss drafted options and language suggestions with the EAP to confirm
and/or enhance. The CFG will then develop an ILA Options Report & Presentation for each
respective County and conduct a review period with PALs to edit and confirm the report and
presentation.
1.7 Joint Stakeholder Workshop #1
Preparation for this workshop will showcase items from Task 1.4 (Current ILA, Policies &
Procedures Report) and Task 1.6 (ILA Options Report). In addition to presenting this information to
stakeholders, we recommend designing a facilitated dialogue based on the presentations to inform
final ILA and PPM development as subsequent steps of this study. The CFG will coordinate with
the PALs to develop a set of general questions that would be appropriate for a joint stakeholder
session. The questions would stem from the presentations/report materials that showcase
documented ILA-language options. The questions should also capture general feedback to inform
future tasks for PPM development. The team anticipates that the first section of the workshop
should be focused on critical aspects of ILA development. Then, the second section of the
workshop should be focused on discussing the existing and aspirational policies and procedures
required for stakeholders and the public to view future implementation efforts a continued success.
Each section of the workshop may require different stakeholder members, depending on their role
and/or responsibilities with plan implementation governance. Duration of this and subsequent
workshops will be refined with PALs early in the study to account for stakeholder's level of
effort/involvement, which will aid in scheduling for stakeholders
It is assumed this workshop will be held in-person and should last for no more than 3 hours, but no
less than 90 minutes.
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1.8 Governance Partners' Staff Workshop
The CFG will coordinate with the PALs to schedule and facilitate a presentation with the
governance partners' staff members responsible for implementing the transit plans. There would
be a total of four groups in attendance, which would include:
• Durham County/City staff/leadership
• Orange County (Policy Steering Committee) & Municipal staff/leadership
• DCHC staff/leadership
• GoTriangle staff/leadership
(Note: leadership, in this case, is defined to be agency executive leadership— NOT
board/commissioner member leadership)
This workshop will be designed to have a pointed discussion around new ILA needs, as well as
specifics regarding necessary policies and procedures that represent their interests. The workshop
should be scheduled for 3 hours. The first hour to be a joint discussion with all four groups. The
second hour to be four breakout sessions for each respective group. The third hour will be a return
to the joint-group style to highlight issues realized in breakouts and help the process gather the
necessary information to refine the ILA based on the options initially documented in the reports
from Task 1.6. A summary of the workshop will be developed and used to inform draft ILA
development. The presentation for each group will stem from information in the ILA Options
Report, but tailored to each audience as necessary during the breakouts.
1.9 ILA & Report Development
Based on all the information and feedback gathered during the Initial Stakeholder Assessment,
Peer Interviews, Joint Stakeholder Workshop #1 and the Individual County Workshops, the CFG
will initially coordinate with the EAP as needed to develop a new ILA for consideration and
associated report. This report will outline a set of alternative options that were realized from prior
study efforts, the choices and tradeoffs used to inform said options, and justification the
incorporation, or lack thereof, of each option into the new ILA.
Part of this exercise will take into consideration points of efficiency between both Durham and
Orange County's proposed draft governance frameworks and streamline with existing Wake
County policies and procedures (i.e. tax district administration, communications protocols, staff
resources). The draft ILA and associated report will first be reviewed by the PALs. Upon successful
review and initial feedback incorporation from the PALs, the draft ILA and associated report should
be distributed electronically to all stakeholders prior to the Joint Stakeholder Workshop#2. This will
allow for ample review time from all involved stakeholders. The PALs and CFG should solicit
questions prior to the workshop to allow for effective workshop facilitation and dialogue. This will
also help the CFG to revise critical sections of the draft ILA and showcase the corrective actions in
a presentation for the workshop.
1.10 Joint Stakeholder Workshop #2
The CFG and PALs will host a second joint workshop for all Durham and Orange Counties, and
associated governance/implementation partners to review and discuss the recommended Final
Draft ILA and associated report (as developed in Task 1.10). The goal will be to seek confirmation
of corrective actions already taken based on solicited feedback from prior electronic distribution.
Then, the CFG and PALs will seek concurrence live, in-workshop, on each section that makeup the
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document. If certain statements in the recommended final draft ILA are still to be desired, the CFG
will work live to develop appropriate language and seek final concurrence. The goal at the end of
this workshop is to arrive to a consensus on all items proposed and discussed on the Final Draft
ILA with an agreed upon Final ILA document to serve both Counties' interests. As a result, and
outcome of this workshop, the CFG will also produce draft staff report documents that can be
supplied to stakeholder-board agendas for adoption in the Fall of 2021, prior to holiday breaks, and
support new transit plan implementation efforts. These board meetings will serve as the official
presentation settings where PALS and/or CFG members will present the new ILA and outline the
process at which the team of staff and stakeholders arrived to inform successful adoptions by
individual governing boards.
1.11 Joint Stakeholder Workshop #2.1
IF necessary, the CFG and PALS will host a third joint stakeholder workshop to tie up any
loose ends with regards to outstanding issues presenting during prior joint or individual
workshop sessions. Goal of this workshop would be to ensure clarity and that the ILA's
going to respective governance partners' boards would successfully reach adoption before
the end of the 2021 calendar year.
1.12 Final Interlocal Agreement
The CFG will incorporate all edits/comments from Task 1.10 and finalize the updated ILA(s) agreed
upon to serve both Counties' interests. Based on the updated ILA, the CFG will work with the PALS
to ensure that any corollary agreements that supplement the purpose of the primary ILA will be
documented with a recommendation for update needs. As a result, and outcome of this workshop,
the CFG will also produce draft staff report documents that can be supplied to stakeholder-board
agendas for adoption in the Fall of 2021, prior to holiday breaks, and support new transit plan
implementation efforts. The CFG will support PALS for any presentation needs with respective
boards and commissions as needed. The CFG anticipates the presentation material will present
the new ILA and outline the process at which the team of staff and stakeholders arrived to inform
successful adoptions by individual governing boards.
Task 1 Deliverables
Report on Current ILA, Policies & Procedures
• Presentation on Current ILA, Policies & Procedures
• ILA Options Report
• ILA Options Report Presentation
• ILA Options Report Addendum: Durham County-Specific
• ILA Options Report Addendum: Orange County-Specific
• ILA Options Report Addendum Presentation: Durham County-Specific
• ILA Options Report Addendum Presentation: Orange County-Specific
• Final Draft Interlocal Agreement
• Final Interlocal Agreement Report
• Final Draft Interlocal Agreement Presentation
• Final Interlocal Agreement(s)
• Staff Report Information for Respective Boards/Commissions
• Presentations to accompany Staff Reports for respective Boards/Commissions
• Meeting/Workshop Minutes/Materials
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Task 2: Policies & Procedures Manual (PPM)
2.1 Review of Task 1 Information & Dialogues
The CFG will revisit feedback from peer interviews and both joint stakeholder workshops regarding
policies & procedures that support the overall governance ILA. The CFG will coordinate with
members of the EAP on certain topics to determine what alternatives or additions to existing
policies and processes could be considered to help maximize plan implementation. Part of this
exercise will be informed from prior stakeholder discussions to understand what aspects should be
potentially streamlined with Wake County processes, or to develop independent processes tailored
to organization needs for Durham and/or Orange Counties and associated governance partners
(who may be captured in the new ILA).
2.2 Existing Protocols & Roles
The CFG will look to understand existing policies and protocols, as well as assigned
roles/responsibilities with respect to major tasks associated with plan implementation. The CFG will
explore how these existing policies and protocols impact certain aspects of actions necessary for
transit plan implementation. Part of this exercise will also involve recommending lead agencies to
assume ownership of each recommended/updated policy and/or procedure. The following primary
roles will be explored in detail:
Public Engagement & Communication: The CFG will evaluate when and how progress/updates are
to be communicated externally to the public or internally with staff or governance boards. This
review should include an assessment of how the public information protocols contribute to
equitable community engagement on plans and projects. This review is important, as many policies
and procedures incorporate methods to disseminate applicable levels of information to various
parties. This component of the PPM development process will seek to help create efficient
structures and protocols to allow for efficient use of current Durham & Orange County staff's time
who have roles in managing transit plan implementation efforts.
Financial Policies: The CFG will evaluate current financial policies and evaluate changes or
updates needed to support the implementation of the transit plans and provide appropriate
oversight of the financial resources of the transit plans. This includes the policies related to
minimum fund balance, debt financing, development of revenue projections, coordination for
financing regional projects, reimbursements, agreements development (for Capital and Operating
initiatives), etc.
Project Development Policies: The CFG will evaluate current policies related to project
development as projects proceed through the planning, design, and construction phases. This
includes an assessment of which agencies should be involved in approving a project to move
forward, when these approvals should occur, the development of cost estimates, and how risks are
assessed. The CFG will evaluate peer policies, including the Wake Transit Concurrent Policy, and
procedures related to how large capital investment projects continue momentum by having all
involved parties in concurrence at critical milestones throughout a project.
Annual Work Plan Development Policies: The CFG will evaluate current policies and procedures
related to the annual work plan development and approval process and any changes needed to
correspond with the new ILA.
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Dispute Management Policies: The CFG will evaluate how disputes could and should be managed
between study participants on a certain initiative within one county, OR how disputes could and
should be managed between study participants on a regional initiative across multiple counties
with multiple stakeholders.
Plan Implementation Administration/Management Policies: The CFG will evaluate and consider
how policies and procedures are currently documented and could be further developed to better
define issues regarding composition and rules supporting an oversight group (i.e. Staff Working
Group), guidelines on staffing for current and projected needs, as well as performance monitoring
of plan implementation and annual report documentation.
2.3 Communications Stakeholder Interviews
The CFG will coordinate with the PALs and associated stakeholders to have a specific interview
with those who manage existing websites and media platforms designed to support successful
plan implementation engagement needs. In conjunction with this specific interview being identified,
the CFG and PALs should interview Wake County peers (and associated consultant team if still
active) regarding their plan implementation dashboard and other Wake County policies. The CFG
and PALs will need to understand critical information being published with Wake County peers and
understand needs/wants for both Durham and Orange County plan implementation functions. This
will further inform if or how roles and functions of such a dashboard are captured in the PPM.
Members from the EAP will participate in these interviews to ensure technical clarity is provided
throughout the conversation and translated effectively into the PPM document that inform
dashboard applicability.
2.4 PPM Options Report & Draft PPM Development
The CFG will summarize notes from the reviews of task 2.2, as well as interviews as a part of Task
2.3 and consult with all members of the EAP as needed to further inform best practices suited for
both Durham and Orange Counties' needs from a policies and procedures standpoint. This will
also help to develop processes for both internal and external information management needs. The
CFG will incorporate findings from prior reviews/discussions/interviews and develop a PPM options
report that outlines various recommendations to achieve a critical path forward. The Policies &
Procedures Options Report, as well as Draft PPM should be distributed electronically (in
preparation of optional Task 2.5) to solicit preliminary feedback and allow stakeholders time to
prepare for workshop suggested for Task 2.5. The Policies & Procedures Report will also include a
section to advise on applicability for functions of an implementation dashboard for stakeholders to
consider in the future.
2.5 Joint Stakeholder Workshop #3
The CFG will coordinate with the PALs to schedule and present on the Policies & Procedures
Options Report from Task 2.4. The discussion and facilitation points should be developed to
enable stakeholders from FDurham & Orange Counties, as well as associated governance
partners, understand what is recommended to be maintained, updated, or modified and also
assign appropriate timeframes upon which to act on highlighted recommendations. It is assumed
that staff members from each governance partner would attend this workshop. The CFG and
PALs should seek feedback on the Draft PPM developed based on recommendations stemming
from the Policies & Procedures Report.
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2.6 Final Policies & Procedures Manual (PPM) & Presentation Development
By incorporating information/feedback gathered from Task 2.5, the CFG will incorporate all into a
Final PPM to assist County staff and leadership with optimal and efficient implementation of the
counties' transit plans. The PPM will consist of final policies recommended for adoption by each
County. The PPM will consist of the core policies and procedures necessary to implement the ILA
including those described in 2.2. It will also enable the development of appropriate communication
roles and functions for both internal/external needs. The CFG will incorporate a review feedback
loop with Durham/Orange County needs and other identified stakeholders to review the draft PPM
and allow the CFG to make any final edits/modifications. This is standard protocol for Atkins'
QA/QC process, but also allows agency staff to serve as check and balance to final documentation
development.
2.7 Joint Stakeholder Workshop #4
The CFG & the PALs will coordinate to schedule a meeting with all appropriate stakeholders to
present the final PPM. It is assumed that staff of each governance partner are the primary
audiences of this workshop. This presentation will help PALs outline documented actions, roles
and responsibilities finalized as a part of the Policies and Procedures Manual. This workshop
should help prepare all stakeholders develop expectations and resources necessary for
implementing new internal processes to support outcomes from the PPM. Minutes from this
workshop will be developed that will include any final edits to the PPM and any remaining next
steps.
Task 2 Deliverables
• Policies & Procedures Options Report
• Policies & Procedures Options Report Presentation
• Draft PPM
• Final Policies & Procedures Manual
• Final Policies & Procedures Manual Presentation
• Meeting/Workshop Minutes/Materials
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Task 3: Project Management and Quality Control
3.1 Determination of Stakeholder Group Members & Roster
Atkins, in coordination with the public agency leads (PM), will identify the personnel to
represent the following governance partners:
• Durham County (Elected Officials & Staff)
• Orange County (Elected Officials - comprising a Policy Steering Subcommittee;
Staff)
• GoTriangle (Board of Trustees Members & Staff)
• DCHC MPO (Executive Board Members & Staff)
Based on initial conversations with public agency leads from Durham & Orange Counties, it is
envisioned that two separate stakeholder groups will need to be formed. It is recognized that
parallels will exist between the two groups, and efficiencies in process can be achieved, but
having two separate groups will allow for independent interests to be captured and incorporated
into interlocal agreements that drive the implementation of each county's transit plan.
A 'game-plan' meeting will be arranged to identify and finalize the member lists for both
stakeholder groups, as well as key staff members from each public entity responsible for
oversight of each County's transit plan implementation. This meeting will be attended by
members of consultant project management team comprised of the PM (Adam Howell of Atkins)
and facilitator (Warren Miller of Fountainworks), the public agency leads. The consultant will
prepare meeting minutes, including a list of proposed members, and send it to the participants in
electronic format for review and one round of comments.
Following the finalization of member lists for both stakeholder groups and Orange County Policy
Steering Subcommittee, a draft invitation letter will be prepared by Atkins inviting the identified
members to join the respective committee. The drafts in electronic format will be presented to
public agency leads for one round of review and comment. Atkins will then make the agreed
upon revisions and present the public agency leads with the final invitation letter. Atkins will send
the invitation letter to the respective identified members and officially formulate both the
committees.
3.2 Project Management Plan
Atkins will coordinate with Fountainworks to prepare a Project Management Plan (PMP) for
management coordination and control to ensure successful and timely completion of the study.
The PMP will contain:
• Detailed work plan, including approved scope of work, fee, and schedule
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• Team organization, including key personnel, roles and responsibilities, and contact
address
• Project execution, monitoring, and project control plan, including method fortracking
schedule and budget throughout the duration of the project
• List of milestones and deliverables
• Conflict resolution protocol
• Project team communication protocol
Atkins will submit a draft version of the project management plan to the public agency leads for
one round of review and comments. Upon receiving the comments, the Consultant will arrange a
conference call with the public agency leads to review and discuss comments. Atkins will then
make the agreed upon revisions and finalize the PMP. The finalized PMP will be distributed to
the public agency leads and all members of the Consultant team.
3.3 Project Management and QA/QC
The Consultant team will provide technical input and coordinate, conduct, and schedule project
management and coordination meetings. The following meetings are anticipated:
1 Project Coordination Meetings: Atkins and Fountainworks (as needed) and the public
agency leads will meet to coordinate leading up to major milestones associated with
stakeholder workshops and facilitation, schedule status, and progress of work, as well as to
address any unanticipated problems and potential solutions. It is initially estimated that at
least eight (8) Project Coordination meetings will be held for Task 1, before December 31,
2021. It is then initially estimated that at least six (6) Project Coordination meetings be held
for Task 2 between January 1, 2022 and June 30, 2022. It is assumed that these meetings
will be held via video/phone conference call. Atkins PM will provide draft meeting minutes in
electronic format to the public agency leads for one round of review and comments. Atkins,
in coordination with other consultant team members as necessary, will then address the
comments and submit a package consisting of meeting minutes and other meeting
materials to the public agency leads.
2 Stakeholder Workshops: It is envisioned that identified stakeholders will be engaged at
different stages of the study, enabling the study team to gather their feedback on policy
directions of the study. To facilitate stakeholder participation, it is assumed that Atkins and
Fountainworks will schedule up to five (5) Joint Stakeholder Workshops (2 primary
workshops in Task 1, 1 optional workshop in Task 1, & 2 primary workshops in Task 2).
There will also be a series of stakeholder interviews (total of 13)for Task 1.3, as well as a
joint governance partner's staff workshop for Task 1.8. Two (or three, depending on
exercising the option) of the joint workshops are assumed to be scheduled before
December 31, 2021; the other two between January 1, 2022 and June 30, 2022. The
individual working group sessions for each of the four (4) governance partners are both
assumed to be scheduled before December 31, 2021. It is assumed that up to three (3)
people from the Consultant team will attend the meetings.
3 Presentations & Updates to Respective Governing Boards The public agency leads
will provide updates at key milestones of the study to facilitate adoption of key
deliverables to respective governing boards affiliated with oversight on each County's
transit plan implementation. These entities are assumed to be Durham County Board of
Commissioners, Orange County Board of Commissioners, Durham Chapel Hill Carrboro
MPO Board & GoTriangle Board of Trustees. It is assumed the public agency leads will
present the material, but consultant project manager will attend to help answer any
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questions. Consultant team will prepare and provide the public agency leads with all the
presentation materials needed for the meeting. It is assumed that the Project Manager
will attend all plan implementation governing meetings at time of adoption for ILAs to be
available for presentation overview with PALs as well as answering any questions.
It is assumed that all coordination meetings will either be held at an agreed upon location
associated with Durham or Orange County public offices OR virtually through platforms like
Microsoft Teams. Based on the eight (8) Task 1 and six (6) Task 2/3 Project Coordination
meetings outlined above, it should be assumed that four (4) would be in-person, the other ten
(10) conducted virtually. The public agency leads will determine need of in-person
collaboration/coordination meetings versus virtual to help develop the critical relationships to
help with the success of this study, but also realize efficiencies presented by virtual
collaboration. The public agency leads and Consultant team will schedule out these
coordination meetings just after setting the dates for stakeholder workshops. Identification of
location will also occur with the scheduling of in-person collaboration meetings.
The number of attendees for each meeting is identified in respective sections of the scope.
For each coordination meeting listed above, the Consultant team will do the following:
o Atkins will establish a purpose and goal for each meeting. Atkins will prepare a
meeting agenda for each meeting that reflects the established purpose and goal.
o Atkins will coordinate with the public agency leads to finalize a list of presentation
materials for each meeting as necessary.
o For Stakeholder and Subcommittee workshops, the Consultant Team will submit
agendas, handouts, presentation materials, etc. to Public agency leads fourteen
(14) business days in advance of a meeting. Public agency leads will review the
documents and provide comments within four (4) business days. Atkins project
team will address the comments within three (3) business days of receiving them
and provide back to the public agency leads. Public agency leads will then
distribute the materials to stakeholder group members for each workshop within
seven (7) business days of each scheduled workshops.
o Atkins and Fountainworks will provide meetings minutes along with any
necessary modification/update of the facilitation/presentation materials to the
public agency leads within five (5) business days of the meeting date for review
and approval. Once approved, the consultant will distribute the meeting minutes
and all presentation materials to the project team and participants of the meeting.
3.4 Progress Reporting and Invoicing
The study is anticipated to have a 12-month duration. Atkins will track progress and budget on a
monthly basis. In addition, Atkins will prepare a master monthly progress report and submit a
consolidated invoice from the Consultant team to the public agency leads each month throughout
the duration of the study.
3.5 Subconsultant Coordination
The Consultant team will coordinate with one another during the completion of this scope of
work. The coordination will include both technical aspects of the evaluation and coordination
relating to schedule and tracking of progress. It is assumed that two (2) coordination conference
calls will be held each month for the duration of the project. Meeting notes will be prepared and
distributed to the Consultant team and public agency leads (as needed).
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Task 3 Deliverables
• Project Management and Quality Control Plan (draft and final)
• Monthly Progress/Status Reports with cost and schedule reports (approximately 12
submittals)
• Membership lists for the Stakeholder Groups (as individual entities for both Durham
& Orange Counties)
• Membership lists of other stakeholders (staff from each public agency) to be included on
communications during the study process.
• Kick Off Meeting, Stakeholder Workshops (up to 3) & Interviews (1 for each County Governing
Board entity; 1 for Wake County peer interview) materials, facilitation components, and minutes
• Project Coordination meeting materials and minutes (up to 8) minutes
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