HomeMy WebLinkAbout05/16/2000, 1 - ADVERTISE BIDS FOR THE RAILROAD TRANSPORTATION CENTER (RTC) council Dae
May 16,2000
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C I T Y O F S A N L U I S 0 B I S P 0
FROM: Michael D. McCluskey,Public Works Director`(—
Prepared By: Terry Sanville,Principal Transportation Planner
SUBJECT: ADVERTISE BIDS FOR THE RAILROAD TRANSPORTATION
CENTER(RTC)
CAO RECOMMENDATIONS
The City Council should:
1. Approve plans and specifications for the Railroad Transportation Center (RTC),
SpecificationNo 99059.
2. Approve transferring $770,000 from various fund sources to this project's construction
budget(see page seven of this agenda report).
3. Authorize the Public Works Department to advertise for bids on the construction contract
4. Authorize the City Administrative Officer to award the contract if the accepted bid plus
contingencies is within the total project construction budget of$1,395,000.
REPORT IN BRIEF
For the past three years the City has been working with SLOCOG and others to establish the
Railroad Transportation Center (RTC). The design work has been completed and the project is
ready to be advertised for bids. However, the remaining $533,000 of State Grant funds and a
$100,000 Water Fund contribution to the project's budget will not be sufficient to cover the
project's estimated cost of$1,400,000,including contingencies. Therefore,staff recommends that
the$770,000 shortfall be taken from a variety of existing fund sources.
Time is of the essence. State officials have indicated that the City must execute a construction
contract with a contractor by August.1, 2000 or lose the project's state grant funding. Therefore,
given the time it takes to advertise a project, receive and evaluate bids, assemble contract
documents,and execute a contract,the Council must act at its May 16'meeting or risk losing state
funds.
DISCUSSION
A.Project Background. In the early 1990's the City secured State Proposition 116 funding to help
create a consolidated"Multi-Modal Center" in downtown San Luis Obispo. However, after the
feasibility of this concept was further evaluated,the City decided to pursue the following course of
action:
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Council Agenda Report-Railroad Transportation Center(RTC)
Page 2
o Develop a downtown transit center(DTC)on Osos Street adjoining City Hall to serve the SLO
Transit System;and
o Purchase property from Union Pacific Railroad adjoining Santa Barbara Street and develop the
Railroad Transportation Center (RTC). This site will initially be used for AMTRAK patron
parking, Historic Railroad Museum parking, and as a layover facility for the regional bus
system. However, in the long term (20+ years) it may be used as a transit transfer center for
both local and regional bus systems serving the southern quadrant of San Luis Obispo.
This agenda report only addresses the seconded bulleted item. (Note: the City has retained a
consultant, Wilber Smith Associates, to again evaluate two alternative sites for the possible
development of a consolidated transit downtown transit center.)
B. Project Development. In 1998, the City Council approved a "Concept Plan" for the RTC
(referred to back then as the Multi-Modal Transit Center). The Council also ordered that the
concept plan be refined to address various design issues including: (1) the possible inclusion of
area that could accommodate a historic rail car display along the site's eastern edge, adjoining the
railroad; and (2) consolidate landscaping to accommodate the potential future widening of Santa
Barbara Street that adjoins the site.
'In April, 1999, Boyle Engineering was hired to prepare a "Final Concept Plan" and plans,
specifications and estimates(PS&E).
In October, 1999 the City completed its purchase of the requisite land from Union Pacific Railroad
and the Guidetti Family (using State Transit Capital Improvement (TCI) and Proposition 116
funds).
In October, 1999, project "stakeholders" (SLOCOG staff, adjoining property owners, and
representatives of the Historic Railroad Museum) reviewed a Final Concept Plan presented by
Boyle Engineering. Boyle revised the concept plan based on input received from the stakeholders
and proceeded with preparing the PS&E.
C.Project Information.Key elements of the project include:
o 123 additional vehicle parking spaces surrounding the historic Southern Pacific Freight
Warehouse and six"layover" parking spaces for regional buses. (Note:a parking management
strategy for the entire railroad square area, including these.new spaces, is being developed by
the Public Works Department and will be in place prior to completing construction of the
RTC.)
o Curbs, gutters and sidewalks(using a boardwalk design as stipulated by the "Railroad District
Plan")along the site's Santa Barbara Street frontage.
o Parking lot lighting that is shielded to avoid glare for adjoining properties and utilizes a design
that complements the site's historic character.
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Council Agenda Report-Railroad Transportation Center(RTC)
Page 3
o Relocation of the transit stop from its current location adjoining the Railroad Square Building to
a new transit turnout at the small triangular park just south of the Osos-Santa Barbara Street
"T" intersection.
o Extension of utilities across the project site to serve the planned use of the Southern Pacific
Freight Warehouse as a historic railroad museum. (Note: this project does not include the
restoration of the freight building which will be pursued separately using Federal grant funds.)
D. Billboard Removal. As part of its approval of the project's design,the ARC recommended that
the City Council purchase and remove the existing billboard on the project site(shown below)prior
to the construction of the parking lot, if possible. Current City Sign Regulations preclude
billboards within San Luis Obispo. Long before the ARC made its recommendation,the Director
of Public Works, with Council authorization, reviewed the lease agreement with the billboard's
owner, ordered appraisals,and has discussed the billboard's removal with its owners. Due to the
owner's expectations for compensation,no reasonable settlement could be reached.
The probable cost of removing the billboard is significant and therefore has not been included in the
scope of this project(especially considering the estimated budget overrun for this project,see Fiscal
Impact section of this report). The project plans show the billboard being retained and surrounded
by parking stalls and a small landscaped area. The City will not be in a position to terminate the
billboard lease until the year 2011 unless it exercises its powers of eminent domain or succeeds in
gaining voluntary removal with compensation provided to the owners.
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Looking South on Santa Barbara Street at the billboard
1-3
Council Agenda Report-Railroad Transportation Center(RTC)
Page 4
If the Council wishes to remove the billboard as part of this project,it should discuss probable costs
in closed session with the Public Works staff,expand this project's budget accordingly and direct
staff to immediately proceed with its abatement, using the City's powers of eminent domain as
needed.
E. Other Related Work.
o Water Main Replacement. Since Santa Barbara Street is being widened and reconfigured as
part of the RTC project,the existing old water main in the street will be replaced as part of the
RTC project. This strategy will avoid having to tear up the street in the future to complete this
necessary utility work. Staff' proposes that the Water Distribution Systems Improvement
Program (Appendix B, page 78 of the Financial Plan) advance $95,000 for this work.
(Advancing these funds will require a re-prioritization of water main projects shown in
Appendix B.)
o Morro Street Bicycle Boulevard and Traffic Signal. At its April 18, 2000 meeting, the City
Council approved closing the south end of Morro Street at Santa Barbara Street, installing a
traffic signal at that location, and establishing Morro Street as a "Bicycle Boulevard." This
work will be done under separate contract during FY 2000-01 and will be preceded by an
informational program for Morro Street residents to brief them on street closure and bicycle
boulevard issues. During the interim period before this work can be completed,bike lanes and
interim striping will be provided on Santa Barbara Street from the Morro-Upham-Santa Barbara
Street intersection north.
CONCURRENCES
The Community Development Department has approved a CEQA Negative Declaration(NG) for
this project. The Negative Declaration requires that noise mitigation be offered to residential
properties along the west side of Santa Barbara Street facing the project site. Depending on the
level of property owner participation, the Public Works staff estimates that this unanticipated
project cost could total$25,000.
On February 22nd, 2000 the Architectural Review Commission granted final approval to the
project's design subject to two findings and eight conditions(ARC 1400). An Administrative Use
Permit was also approved by the Community Development Department.
FISCAL MACT
A. Background. The budget for the Railroad Transportation Center has evolved along with the
evolution of the project itself — see preceding "Project Background" section of this report.
Initially,the Proposition 116 funds that were approved by SLOCOG for a consolidated downtown
transit center were transferredto this project;new state Transit Capital Improvement Program(TCI)
funds were also secured from SLOCOG(which were the result of the State"double programming"
funds for reconstruction of the AMTRAK rail platform);and State Highway Account(SHA)funds
were earmarked for this project and for Phase II of the Railroad Bicycle Path.
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Council Agenda Report-Railroad Transportation Center(RTC)
Page 5
The project budget was established prior to the completion of any final concept plan for the project
or any detailed cost estimate being prepared. The current project budget is shown below:
RTC Project Budget
Funding Source Amount
State Proposition 116 $1,016,100
Transit Capital Improvements(TCI) $582,000
State Highway Account(SHA) $100,000
Total $196989100
B.Current Fiscal Status. The following is an estimate of the expenditures mclate and the residual
funds available in the project budget that are not earmarked for design or environmental mitigation
activities.
Expenditures/EncumbrancesTo Date
Activity Earmarked Funds % of Project Budget
Property Acquisition&Related Property $987,599 58%
Services
Environmental Reports and Preliminary $62,038 4%
Transit Studies
Plans,specifications&estimates, $115,400 7%
environmental mitigation,and ancillary
services
Estimated Total To Date $191659037 69%
Estimated Unencumbered Remainder $533,063 31%
Total Current Budget $196989100 100%
C.Engineer's Estimate for the RTC and the budget shortfall is shown below.
Cost Element Amount
Base Construction $1,150,000
Contingencies@ 11.5 Percent** $150,000
Subtotal:RCT Construction $1,300,000
Water Main Replacement(includes contingencies) $95,000
Total RTC Construction Budget $1,395,000
Revenue Source Amount
Remaining Unencumbered Funds(Prop 116) $533,063
Water Improvements Program Contribution $95,000
Total Revenues Available $628,063
Unfunded Project Balance(rounded) . $770,000(rounded)
**Given the location and nature of the project(types and designs of facilities being installed)staff recommends
that a slightly larger contingency-11.5%v. 10%—be established.
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Council Agenda Report-Railroad Transportation Center(RTC)
Page 6
D. Reasons for the Budget Overrun. This project is an example of how the availability of grant
funding "created" a project rather than a project seeking grant funding. Thus the "budget" was
based upon grant funds received and not upon an actual project. The scope of the project was not
decided upon until 1998 and the actual cost estimate for its construction was prepared in 2000.
Staff estimates that the remaining project budget($533,063)will only cover approximately 4l% of
the project's construction cost, leaving 59% un-funded. This is a substantial budget overrun and
like most complicated projects is difficult to fully account for — especially given the elapsed time
between establishing the first project budget and completing the project design. However,project
elements that have contributed significantly to the bottom line cost and were not totally anticipated
include the following:
Land Acquisition Costs: Initially staff believed that the land could be purchased with State
TCI Funding. In reality, the square footage cost for the parcel
owned by Union Pacific was significantly greater that the City's
experience purchasing other railroad property. Therefore, instead
of spending $582,000, the City spent $987,599, a $405,599
overrun or a 70%increase over expectations.
Costs Associated With Since the project is located within the Railroad Historic District,
Enhanced Development its design reflects (and rightfully so)the standards of that planning
Standards policy. Additional costs are involved with installing boardwalks
along Santa Barbara Street, parking lot lighting that complements
the historic character of the area and avoids glare problems, and a
uniquely designed retaining wall that enables landscaping along its
top and surface and discourages graffiti. These and other design
elements resulted in costs not normally associated with a standard
parking lot.
The Railroad Platform and This element of the project is central to its design theme and
Pedestrian/Bicycle extends along the eastern edge of the site. This three meter wide
Walkway walkway was designed to function as a platform for a future
historic railroad display, but also to act as a Class I shared bicycle
and pedestrian path.
Widening of Santa Barbara The issue of improving operations .along Santa Barbara Street
Street arose after the RTC project development was underway. Staff
conservatively estimates that this feature increased the project cost
by about $70,000. This cost was previously discussed with the
City Council at its April 18, 2000 meeting with the funding source
being the unencumbered General Fund Balance.
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Council Agenda Report-Railroad Transportation Center(RTC)
Page 7
Advance Utility Work Although not a large amount, the staff directed the consultants to
include the cost of extending utility services to the Southern
Pacific Freight Warehouse as part of this project. This cost is in
support of the rehabilitation of the warehouse, which will occur
after the completion of the parking lot, using local and federal
grant funds. The utilities are being installed now so that the
surface of the parking lot need not be tom up in the future.
Pavement Design In general, as with other petroleum based projects, the recent cost
of asphalt has escalated. Also, this particular parking lot (at least a
substantial portion of the drive isles and the southern parking area)
must be designed to handle the added weight and wear and tear of
transit vehicles.
E.Recommendations for Accommodating Budget Overrun. Staff carefully reviewed the City
adopted Financial Plan and current budget looking for funding sources that can legitimately be
tied to the activities included in this project. Staff also analyzed the budgets of completed capital
project to determine if there is any residual funding that might be applied to the RTC's
construction. Attached Exhibit A presents the results of this analysis and describes the
relationship between the purpose of the RTC and the intent of each particular funding source.
Staff avoided considering other active capital projects as potential funding sources because it
would require an extensive evaluation of the Capital Improvement Program (CIP) and the
potential changing of project priorities. (However, staff will be prepared to discuss this issue if
the Council is interested.) The rationale for recommending the use of each source or rejecting a
particular source is also presented on Exhibit A. Based on this analysis, staff recommends that
the project budget deficit be eliminated by transferring funds to this project's account from the
following sources:
RTC Project: Money Available from other Project Budgets/Programs
Remaining/
Available/
Source New
Bicycle Projects 78,418.56
Elks Lane Bridge 12,867.48
Traffic Calming (Old Chorro St Project) 26,226.77
Water main Improvement Project 8,087.04
Street Reconstruct&Resurface 99-01 (1) 274,400.15
Foothill Railroad Crossing 100,000.00
(Completed by Union Pacific @ no cost to City)
Parking Fund Unappropriated Balance 150,000.00
Transit Fund Unappropriated Balance 50,000.00
Unencumbered General Fund Balance (for Santa Barbara 70,000.00
Street widening) (1)
Total Remaining/Available/New $770,000.00
(1) $425,000 available from an STIP grant for paving Johnson Avenue allows a reduction of the capital
outlay fund reconstruction and resurfacing project. Also, at its 4/18/00 meeting, the Council by minute
action acknowledged that $70,000 should pay for the costs of widening Santa Barbara Street from the
unencumbered General Fund balance.
Council Agenda Report-Railroad Transportation Center(RTC)
Page 8
The proposed budget adjustments described above are needed to cover the estimated project cost
plus contingencies. If the actual project cost is less than estimated or if contingency funds are
not needed, then these residual funds should be returned to the street reconstruction and
resurfacing program which contributed the largest supplementary amount.
Staff also contacted SLOCOG officials to determine if there are any surplus State or Federal
grant funds that may be available from that agency. At this time,there is not. While funds may
become available in the future, most grants do not provide for reimbursement of costs incurred
prior to the execution of a grant agreement or receiving required State or Federal approvals.
Therefore,the City should not expect further grant assistance for this project. In fact, the current
grant agreement with SLOCOG requires the City to cover any cost overruns.
While the extent of the construction budget overrun is significant, the City has still succeeded in
securing a significant amount of grant funds to reduce this project's overall fiscal impact on the
City's General Fund or other Capital or Enterprise accounts. Consider the following:
Source of Funds $ Contribution Percent of Total
State Funding: Proposition 116, TCI, $1,698,100 69%
SHA
Local Funds $770,000 31%
Totals $2,468,100.00** 100%
**Total includes 11.5%or$150,000 construction contingency cost.
ALTERNATIVES
Project Phasing or Deferral. Neither of these options are easily accomplished nor
recommended. The grant agreement with SLOCOG requires the City to construct parking
available for AMTRAK patrons and for six CCAT busses and provide bicycle and pedestrian
facilities.
o Phasing. The proposed location of the AMTRAK parking will be at the northern end of the
site with access to the passenger platform while the bus layover parking will be on the south
end of the site off of High Street. Busses will enter the site from High and exit the site at the
northern driveway at a signalized intersection. Therefore, the entire site needs to be
developed as a single unit to accommodate these two grant-required functions.
o Deferral. According to State officials, the City will loose the remainder of its grant funding
($533,000) if it has not executed a construction contract for this project by August 11.
Therefore, if the project is to go forward, the City Council must act at its May 16' meeting.
Furthermore, the proposed rehabilitation of the historic Southern Pacific Freight Warehouse
and the creation of a railroad museum is contingent upon this parking lot project being
completed. Therefore, deferral or abandonment of this project would require the railroad
museum project to also be deferred with possible likely loss of Federal grant funding.
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Council.Agenda Report-Railroad Transportation Center(RTC)
_ Page9 -- — ---
Attachments
Exhibit A: Alternative Funding Sources.
Exhibit B: Reduced Scal&Sketcti of Project
Exhibit C: Plans.and Specificatiorisare available-in.the Gouncil.Office for review
I:Everyone\CounciiApndaRq=M\tTCA&mtixforBids
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EXHIBIT B
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1-14