AGENDA #12

MEMORANDUM

TO:                  Mayor and Town Council

FROM:            W. Calvin Horton, Town Manager

SUBJECT:       Consideration of Needs that could be Addressed in a Proposed County Bond Referendum

DATE:             February 12, 2001

The purpose of this memorandum is to offer a list of parks and recreation needs that the Council may wish to consider as it decides what to propose for inclusion in a County Parks bond referendum now under discussion.

BACKGROUND

In 1996, Chapel Hill voters approved $5 million in parks bonds and $3 million in Open Space bonds.  Funds have been used for Homestead Park, the Northside gymnasium at Hargraves Park, and purchase of approximately 50 acres of open space and greenway property.  Approximately $1.2 million remains in the Park bond and $1,756,000 in the Open Space bond.

In 1997, voters approved a $3 million Orange County parks bond. Of that amount $1 million each was designated by the Board of County Commissioners for Homestead Park and the Southern Community Park, respectively. Approximately $855,000 remains for Homestead Park development and $900,000 for the conceptual plan development and construction of the first phase of the Southern Community Park.

In May 1998, the Council adopted the Chapel Hill Greenways Comprehensive Master Plan that identifies 28 miles of potential trails. About 6 miles of trail have been completed or will soon be completed.

In June 1998, the Council appropriated $53,000 for planning of a pool/community center at Homestead Park. An architect was selected and in September 1999, the Council appointed citizen representatives to the Homestead Park Aquatic/Community Center Conceptual Plan Committee. On October 18, 2000, the Council held a work session with the Homestead Park Aquatic/Community Center Conceptual Plan Committee. A public forum was held on January 29, 2001.

On September 25, 2000, the Council adopted a resolution authorizing the Manager to pursue several open space acquisition opportunities including greenway property, larger tracts of open space, and nonconforming lots.

In January 2001, the Council approved the 2002-2008 Metropolitan Transportation Improvement Program request that includes a number of potential greenway and bikeways projects.

DISCUSSION

PARKS AND FACILITIES

The Parks and Recreation Master Plan, Preliminary Recommendations, which were presented at a public forum on January 18, 2001, include a number of specific recommendations related to the Town’s plans to increase recreation opportunities. The Report identifies two projects for which there are currently some funds available. 

Homestead Park Aquatics/Community Center

The exact program for this facility has yet to be determined by the Council. However, we believe that the proposed facility could address a number of important deficiencies in the Town’s inventory of parks facilities.

Pool for Lap/Competitive Swimming: All-season pools at the Community Center, UNC, the YMCA, and the SportsPlex in Hillsborough are inadequate for the current and projected populations of lap and competitive swimmers. Additional space is required to allow reasonable access by individual swimmers as well as various swim teams throughout the community. Additional space for lap and competitive swimming is especially needed in the morning, lunch, and late afternoon hours.

Leisure/Warm Water Pool: There are currently no public pools in the Chapel Hill/Carrboro area that are built and programmed for children, elderly, disabled, or other populations that may require a pool with zero entry features and higher water temperatures. Water temperatures in leisure pools are typically set at approximately 88^°  or about 6^°  warmer than the typical temperature found at the Community Center pool. This additional heating allows greater immersion times for people who have difficulty maintaining body temperature in the cooler water of standard lap pools. Provision of leisure pools is one of the strongest trends in municipal recreation today because they tend to serve a more diverse population, allow more people to use the pool at one time, and generate more revenue than standard lap pools. 

Multi-purpose Community Space: One of the strongest preliminary recommendations addressed  by the Parks and Recreation Master Plan Committee has been for the Department’s need to increase its inventory of programming and meeting space. The Department currently has little space suitable for such activities as dance, arts, community gatherings, summer camps, and childcare. The Town frequently uses large gymnasium spaces for programs that would ideally be held in smaller more efficient settings. Once the lease expires on the Lincoln Arts Center in 2007 we will likely lose that space as well.

Budget Concerns: Together, the Town and County currently have about $2,000,000 that could be used for this project. The Homestead Park Aquatic/Community Center Conceptual Plan Committee has worked with a consultant and staff to prepare the following budget estimates for a range of potential features to be included in the facility. These include:

Core Facility Stand Alone ^{1,2, 3}                           $1,519,000

Leisure/Warm Water Pool Stand Alone ^1,2          $3,880,000

25 Yard by 25 Meter Stand Alone ^1,2                 $4,450,000

50 Meter by 25 Yard Stand Alone ^1,2                 $7,819,000

50 Meter Venue Stand Alone ^1,2                         $9,818,000 

¹ These cost estimates include $325,000 in site work per option. Actual site work costs will vary depending on the eventual structure selected for construction.

² Costs for stand-alone facilities include funds for locker rooms, lobby space, storage, and office areas for the facility personnel only.

³ Additional information related to the proposed Core Facility is found in Attachment A.

Options: We believe the Council could consider a number of options related to the level of facility programming and related costs. We have provided a number of scenarios if we were to combine existing funds with any Orange County Park bond for the Homestead Park aquatics/community center. All of the options below assume that the $2,000,000 in existing Town and County bond funds would be used for the facility. Options are listed by size of any potential bond, in an ascending order. We have listed 3 options below. However, we also have a more complete list of options in Attachment B.

HOMESTEAD PARK, OPTION 1 - No additional Orange County Parks Bond Funds for a total budget of $2,000,000.  This amount would allow construction of the following:

·        Core Facility, including Community Meeting Space, Arts, Dance, and Cultural Instructional Programming Space, Entrance/Lounge Space, and Facility Staff/Support Space

HOMESTEAD PARK, OPTION 2 -  $3,000,000 in additional Orange County Parks Bond Funds for a total budget of $5,000,000.  This amount would allow construction of either of the following:

·        Leisure Pool Stand Alone (88º^°water temperature), or 

·        25 Yard by 25 Meter Stand Alone

HOMESTEAD PARK, OPTION 3 - $7,000,000 in additional Orange County Parks Bond Funds for a total budget of $9,000,000.  This amount would allow construction of any one of the following:

·        Combined Core Facility, Leisure Pool (88^°  water temperature) & 25 Meter by 25 Yard Pool, or

·        Combined Core Facility, 25 Meter Pool, & Gymnasium

·        50 Meter by 25 Yard Stand Alone

Administrative Offices: None of the options listed include new administrative offices for the Parks and Recreation Department staff. Although we believe that the quality and size of the present metal building on Plant Road currently housing the Department is inadequate, we think that resources other than County bonds should be used to replace them.

Procedural Concerns: On February 1, 2001, the Parks Intergovernmental Work Group met and discussed the concept of Orange County participation in a park bond. The County Manager indicated that there might be a contractual issue related to a non-competing clause with the SportsPlex that could prevent County participation. After some research, the County staff has determined that it would likely be inconsistent with the agreements related to the SportsPlex for the County to own or operate another pool that would compete with the SportsPlex.  However, it is possible that contribution to the capital and/or operating costs of another pool might, if carefully designed, be acceptable in the context of the SportsPlex agreements.

SOUTHERN COMMUNITY PARK

Because the conceptual plan committee has not started its work, the exact program for this park has yet to be determined by the Council. However, we believe that the eventual park plan could include such program elements as:

Athletic/Soccer Fields: We believe that the need remains great for additional athletic/soccer fields in Chapel Hill, especially larger fields suitable for adult play. (The fields at Homestead Park are suitable only for youth play). These fields could be used for a variety of sports including soccer, football, lacrosse, and field hockey.

Ballfields: There are continuing needs for additional baseball/softball fields for both youth and adult play. Fields would allow the Town to expand its program, add to our rental inventory, and allow neighborhood use of the facility when not in use by the Town.

Trails: The existing Fan Branch Trail could be expanded through the site to Dogwood Acres Drive and beyond to 15-501. Other trails could be built throughout the site.

Dog Park: The Chapel Hill/Carrboro area has only one small dog park (Anderson Park in Carrboro). The Southern Community Park might be a good location for a southern dog park in Chapel Hill.

Specialty Courts: This might be a good site for roller hockey and/or tennis courts. Roller hockey is a fast growing and popular sport. There are no public roller hockey courts in Chapel Hill.

Budget Concerns: Based on the construction costs of Homestead Park we believe that a $5,000,000 bond, coupled with the $900,000 remaining from the 1997 County Parks Bond would allow us to complete  a variety of facilities such as soccer fields, ballfields, a dog park, picnic facilities, trails, and play areas.  It probably could not fund construction of buildings beyond simple picnic, restroom or storage facilities.

Options: Because we are still in the architect selection stage of this project, we have no proposed park program or preliminary cost estimates. However, based on our experience with Homestead Park and our knowledge of the site, we believe that it is possible to list several options that might describe, in general terms, what could be accomplished.

SOUTHERN COMMUNITY PARK, OPTION 1 -  $1,000,000 in additional Orange County Parks Bond Funds for a total budget of $1,900,000.  This amount might allow construction of the following:

·        2 fields

·        dog park

·        parking

·        play and picnic area

·        extend the Fan Branch Trail to Dogwood Acres Drive

SOUTHERN COMMUNITY PARK, OPTION 2 -  $3,000,000 in additional Orange County Parks Bond Funds for a total budget of $3,900,000.  This amount might allow construction of the following:

·        3 fields (full size, turf, lighted, and with irrigation)

·        dog park

·        parking

·        play and picnic area

·        4 season restrooms

·        extend the Fan Branch Trail to Dogwood Acres Drive

SOUTHERN COMMUNITY PARK, OPTION 3 -  $5,000,000 in additional Orange County Parks Bond Funds for a total budget of $5,900,000.  This amount might allow construction of the following:

This amount would likely allow for total build out of the site including the following:

·        3 or 4 fields (full size, turf, lighted, and with irrigation)

·        dog park

·        paved surface playing courts

·        additional parking

·        large play and picnic areas

·        disk golf

·        4 season restrooms

·        maintenance structure

·        extend the Fan Branch Trail to 15-501

·        some specialized facility to be determined

·        rough grading and extension of utilities for future community center

GREENWAYS AND BIKEWAYS

The Town has built, or will soon complete about 6 miles of greenway trail out of a possible 28 miles identified in the Chapel Hill Greenways Comprehensive Master Plan. This is approximately 21% of the potential trail system described in the Report.

The Council has adopted the May 2000, Planning for Chapel Hill’s Future: The Comprehensive Plan, which addresses some bicycle issues and the 2002-2008 Metropolitan Transportation Improvement Program. Additional guidance is found in the draft 1998 Bicycle Plan, which was prepared by the Bicycle Task Force.

Attachment C contains a list of all major greenway segments in the adopted Chapel Hill Greenways Comprehensive Master Plan and their related costs. Although these cost estimates are at a general planning level of accuracy only, we believe they can still helpful in assessing future bond needs.

The Greenways Commission has identified a priority list of about $5,000,000 in projects that include:

Bolin Creek Trail, west of Airport Road                                                      $2,000,000

Bolin Creek Trail, stairs to existing trail                                                               80,000

Booker Creek Trail, Weaver Dairy Road to Homestead Park                          500,000

Booker Creek Trail, Connector to Rail Trail and Greene Tract                         100,000

Dry Creek Trail, East Chapel Hill High to Erwin Road                                      305,000

Morgan Creek Trail, Culbreth Road to NC 54/Merritt Pasture                         900,000

Morgan Creek Trail, Merritt Pasture to Carrboro                                          1,050,000

Total                                                                                                          $4,935,000

The 2002-2008 Transportation Improvement (TIP) program identifies the following road improvement projects that include the addition of bicycle lanes:

·        Estes Drive

·        Seawell Road

·        Culbreth Road

·        Old Durham-Chapel Hill Road

·        Pope Road

·        Piney Mountain Road

·        Mount Carmel Church Road

There are no cost estimates for any of these projects at this time.

Options:  $1,000,000 – 5,000,000 in Orange County Parks Bond Funds would allow us to construct a number of greenways and/or bikeways projects, depending on the ultimate size of the bond and the scope of the projects selected.

OPEN SPACE ACQUISITION

In 1996, the voters approved a $3,000,000 Open Space bond order. Since that time we have purchased a total of 50 acres of land for $1,244,000. Approximately $1,756,000 remains in the bond fund for future purchases.

Potential Open Space Projects Approved by the Council:

·        Dickerson Court lots and houses

·        Open space along Morgan Creek between Smith Level Road and 15-501 south

·        Non-conforming lots

·        Open space along Wilson Creek east of 15-501, between Mt. Carmel Church Road and Star Point

In addition, the Council authorized the Manager to locate other potential target properties. We believe that the following areas may have properties that would meet open space acquisition goals:

·        Bolin Creek Trail corridor

·        Dry Creek Trail corridor

·        North Trail corridor

• Rail Trail corridor

·        Upper Booker Creek Trail corridor

Options: We believe that $1,000,000 – 3,000,000 in Orange County Parks Bond Funds would allow us to make significant land purchases. Because land costs could range from $10,000 per acre for flood plain property to well over $50,000 per acre for developable property within the urban services boundary, we believe that it would be reasonable to consider $3,000,000 for purchase of open space.

SUMMARY

The County is assembling requests for projects for a possible Parks bond referendum. The attached resolution includes a request to the County to include $20,000,000 in the bond referendum for the following projects:

• Aquatics/community Center at Homestead Park - $7,000,000
• Southern Community Park - $5,000,000
• Greenways and Bikeways Projects - $5,000,000
• Open Space Acquisition - $3,000,000

 We anticipate discussion by the Council of various options and anticipate that the Council would change the amounts and/or project categories as it sees fit.

RECOMMENDATION

Manager’s Recommendation: That the Council consider all of the options above, any additional options, or any combination of options, and provide us guidance.

The attached resolution would request that the Board of Orange County Commissioners include $20,000,000 in bond funding for the following projects:

• $7,000,000 for the construction of an aquatics/community center facility at Homestead Park
• $5,000,000 for the construction of Southern Community Park
• $5,000,000 for greenways and bikeways
• $3,000,000 for open space

.

 The Council could alter this resolution in any way..

ATTACHMENTS

1. Information Related to the Proposed Core Facility (p. 10).

B.   Additional Potential Options for the Aquatics/Community Center (p. 11).

C.  Preliminary Greenways Cost Estimates (p. 12).

A RESOLUTION REQUESTING THAT THE ORANGE COUNTY COMMISSIONERS INCLUDE $20,000,000 IN BOND ORDERS ON THE BALLOT FOR PARKS, GREENWAY, BIKEWAY, AND OPEN SPACE PROJECTS IN THE TOWN OF CHAPEL HILL (2001-02-12/R-15)

WHEREAS, approximately $2 million remain from Parks bonds approved by the voters in the Town of Chapel Hill and Orange County for the Homestead Park project, and

WHEREAS, the work of a citizen committee and comments from public forums have indicated that the citizens prefer an aquatics/community center facility that would cost approximately $8.5 million, and

WHEREAS, growth in the southern portion of Chapel Hill and community wide needs for park land indicate a need to develop the Southern Community Park site, and

WHEREAS, the Town has completed or will soon complete only 6 miles of its proposed 28 mile greenway system, and

WHEREAS, a number of bicycle transportation projects have been identified in the May 2000, Planning for Chapel Hill’s Future: The Comprehensive Plan, the 2002-2008 Metropolitan Transportation Improvement Program, and the draft 1998 Bicycle Plan, and

WHEREAS, only $1,756,000  remains in the Town’s 1996 Open Space bond fund for the purchase of greenways, open space, entranceways, natural areas, and non-conforming lots,

NOW, THEREFORE, BE IT RESOLVED by the Council of the Town of Chapel Hill that the Council requests that the Orange County Commissioners place bond orders on the ballot that if approved by the voters would authorize the sale of general obligation bonds for the following projects in Chapel Hill:

·        $7,000,000 for the construction of an aquatics/community center facility at Homestead Park

·        $5,000,000 for the construction of Southern Community Park

·        $5,000,000 for greenways and bikeways

·        $3,000,000 for open space

BE IT FURTHER RESOLVED by the Council that it is requested that any Parks bond order placed on the ballot by the Board of County Commissioners and any information provided to the voters allow for the possibility that the funds could be used for other parks capital projects approved by the County Commissioners and the Chapel Hill Town Council, if funds remain after construction of the two primary projects.

This is 12^th day of February, 2001.

ATTACHMENT A

ADDITIONAL INFORMATION RELATED TO THE PROPOSED CORE BUILDING

Program Elements of the Core Facility: The Council could decide to build only the Core Facility or select an option that does not include a Core Facility, although some elements of the Core Facility would have to be included in any structure. This price includes:

• Community Meeting Space
• Arts, Dance, and Cultural Instructional Programming Space
• Entrance/Lounge Space
• Facility Staff/Support Space

Potential Add-ons to the Core Facility: If the Council chooses to build the Core Facility then the costs of adding individual program elements will be less than if they are built as stand-alone structures. These are the projected costs of adding various components to the Core Facility.

·        $1,693,000 for gymnasium component

·        $2,191,000 for leisure/family pool component

·        $3,652,000 for 25-meter by 25-yard pool component

·        $6,885,000 for 50-meter pool component

·        $7,677,000 for 50-meter venue pool component                      

Administrative Office Space: Adding office space to the facility for Parks & Recreation staff would add $759,000 to the cost. We believe that any request to the Orange County Commissioners should be only for office space that is needed to run the facility. However, we also believe that it is worth considering the construction, with Town funds, of departmental office space along with this structure to replace the inadequate space on Plant Road.

ATTACHMENT B

ADDITIONAL POTENTIAL OPTIONS

HOMESTEAD PARK AQUATICS/COMMUNITY CENTER

OPTION 1 - No additional Orange County Parks Bond Funds for a total budget of $3,000,000.  This amount would allow construction of the following:

·        Core Facility, including Community Meeting Space, Arts, Dance, and Cultural Instructional Programming Space, Fitness Area, Entrance/Lounge Space, Locker Room Space, and Facility Staff/Support Space

OPTION 2 -  $3,000,000 in additional Orange County Parks Bond Funds for a total budget of $5,000,000.  This amount would allow construction of either of the following:

·        Leisure Pool Stand Alone (88^°  water temperature), or 

·        25 Yard by 25 Meter Stand Alone

OPTION 3 -  $4,000,000 in additional Orange County Parks Bond Funds for a total budget of $6,000,000.  This amount would allow construction of the following:

·        Combined Core Facility and Leisure Pool (88^°  water temperature)

OPTION 4 -  $5,000,000 in additional Orange County Parks Bond Funds for a total budget of $7,000,000.  This amount would allow construction of the following:

·        Combined Core Facility and 25 Meter by 25 Yard Pool

OPTION 5 -  $7,000,000 in additional Orange County Parks Bond Funds for a total budget of $9,000,000.  This amount would allow construction of any of the following:

·        Combined Core Facility, Leisure Pool (88^°  water temperature) & 25 Meter by 25 Yard Pool, or

·        Combined Core Facility, 25 Meter Pool, & Gymnasium

·        50 Meter by 25 Yard Stand Alone

OPTION 6 -  $9,000,000 in additional Orange County Parks Bond Funds for a total budget of $11,000,000.  This amount would allow construction of any of the following:

·        50 Meter Venue Stand Alone