In May, we waited for the County and the RCO  to resolve grant funding issues regarding the Discovery Bay section of the ODT, so they could then turn to the planning study for the Eaglemount section. 

Work With the County on Route Planning

In early May, in anticipation of execution a contract between the County and the RCO regarding the $1 million Eaglemount authorization, after thorough discussions with PTC board members, I redrafted my “scope of work” for the ODT-Eaglemount route study and sent it to Eric Kuzma at JeffCo Public Works.  Here’s my draft:

Scope of Work

Route Study for Eaglemount Section of Olympic Discovery Trail

The following is the scope of work for a route study for the Eaglemount section of the Olympic Discovery Trail (ODT), in Jefferson County, Washington, running from the southern end of the Larry Scott Memorial Trail at Discovery Road to the northern end of Section “B” of the Discovery Bay South section of the ODT near the junction of US101 and SR20 (the “trail”), within the corridor (the “corridor”) shown on the attached map.

Objectives

The consultant, working jointly with the Peninsula Trails Coalition (“PTC”) and its volunteers, and Jefferson County Public Works, shall develop a preferred route for the trail within the corridor that is consistent with Jefferson County’s Comprehensive Plan, Chapter 8 of the County’s 2010 Non-Motorized Transportation & Recreational Trails Plan, and the goals stated in that Plan.

The consultant shall analyze the need, probable use, and benefits of the trail.

Evaluation Process

The consultant shall compose an evaluation process for identifying the preferred route for the trail, considering, among other things, topography; grades; natural features; length; infrastructure and utilities; access points; road and highway intersections and crossings; landowner and public agency acceptance (subject to negotiation of the terms of acquisition and use); probable effect on property values; nature of property control (fee simple, easement, etc.); security of infrastructure and facilities; buffer requirements; permitting; safety; emergency vehicle accessibility; aesthetics; user experience; views; convenience; habitat constraints; maintenance costs; maintenance responsibilities, including volunteer services; potential revenue sources associated with the trail; and connectivity to existing facilities and the communities.

The consultant shall evaluate a range of potential routes that can be developed at reasonable cost within the corridor, and following such evaluation shall identify a preferred route for the trail that is generally supported by the citizens of Jefferson County; is generally supported by user groups including the PTC; is acceptable to the landowners of the land over which the route runs (subject to negotiation of the terms of acquisition, development and use); minimizes environmental impacts; generally complies with AASHTO guidelines and other applicable trail design guidelines; is generally consistent with the Peninsula Trails Coalition’s ODT Trail Design standards; and is expected to cost an amount which is proportionate to its need and probable use.

The consultant shall prepare paper and electronic maps of the preferred route showing, among other things, trail locations (with precision sufficient for initial design); grades; required bridges, if any; sections, if any, exceeding grade guidelines that may require mitigation; road or highway crossings; lengths; property ownerships; zoning and land-use restrictions; probable logging dates; streams and wetlands; existing and planned amenities (water, trailheads, signage, toilets, etc.); views; infrastructure and utilities; steep slopes; significant topographical features; existing roads or trails; current and expected future usages; and legends.

Phasing

The consultant shall identify possible phases for design and development of the trail.

Cost Estimates

The consultant shall estimate the costs of acquisition, design, construction, maintenance, and infrastructure security for the preferred trail design and route.

Potential Funding Sources

The consultant shall identify potential sources of funding for the trail, including potential state, county, local, and federal funding sources; foundations; businesses; organizations; and individuals.  The consultant shall set forth the current schedules, if any, for funding applications. 

Public Participation

The consultant shall conduct interviews with community representatives, user groups, partner agencies, neighborhood residents, businesses, and neighboring property owners to identify issues and define desired plan outcomes, organizational goals, and priorities.

The consultant will use electronic means, including social media, to solicit public input.

The consultant shall plan, publicize and organize at least one open house to solicit ideas from citizens, potential users, adjacent property owners and other interested parties.  At the open house, route alternatives, graphics, cross-sections, and design components shall be presented to the public for feedback. The open house shall be a participatory session with the opportunity for community members to provide immediate feedback, and to develop a sense of public preferences about the function, design, alignment, and identity of the trail alternatives.  The consultant shall join with the PTC and its volunteers in making presentations regarding the preferred route at the open house.

Coordination with Other Public Entities

The consultant, together with the PTC and its volunteers, shall determine the support of other public entities (including the City of Port Townsend, Jefferson County PUD#1, WSDOT, Anderson Lake State Park, and the Department of Natural Resources) for the preferred route, and their willingness to coordinate with Jefferson County by developing and maintaining parts of the trail on their properties.

The consultant shall coordinate with the U.S. Forest Service and the Pacific Northwest National Scenic Trail Advisory Council in planning the trail and identifying possible funding sources for the trail.

Site Visits

The planning process shall begin with a site visit and stakeholder meeting attended by the consultant.  Thereafter, the consultant shall visit the site as often as reasonably necessary to completely and accurately develop the preferred route for the trail.

Meetings with County

The consultant, together with the PTC and its volunteers, shall meet with County to obtain direction at key decision points, and shall meet at any other time reasonably requested by the County.  

Design Guidelines

The consultant shall prepare detailed trail design guidelines that incorporate AASHTO guidelines and other applicable trail design guidelines.  The design guidelines shall describe typical trail cross-sections, on-street treatments, trail/street intersections, creek crossings, road crossings, preferred trail surfaces, signing and pavement markings, lighting, drainage, wayfinding signage, photo examples of typical, appropriate designs.  The design guidelines shall incorporate a combination of proven designs, best practices, and trail design information on the ODT website (http://olympicdiscoverytrail.com/about_us/trail_design.html). The design guidelines shall include a glossary of terms, definitions of acronyms, and explanations of local jargon or unfamiliar terminology.

Final Report

The consultant shall provide a written final report that among other things describes the work performed; identifies in detail the need, probable use, and benefits of the trail; describes and maps the design and route for the trail, and explains in detail the reasons for its selection; identifies the property owners (public and private) who will accept the design and route on their properties (subject to negotiation of the terms of acquisition, development and use); identifies the most probable type of acquisition (fee simple, easement, etc); provides estimates of the costs of acquisition, design, construction and maintenance for each phase of construction; reports the results of the public engagement process; and includes detailed trail design guidelines.  The final report shall include an Executive Summary.  Twenty-five paper copies and an electronic copy of the final report shall be provided.

Eric promptly responded with a markup/redraft, which primarily added some technical language and shifted things around a bit:

Scope of Work

Olympic Discovery Trail Route Study

The following scope of work is for the preparation of a route study for a segment of the Olympic Discovery Trail (ODT) to be located in Jefferson County, Washington.  The corridor in which the segment will be located spans from the Milo-Curry Road terminus of the Larry Scott Trail to the SR-20/US 101 intersection.

Objective

The consultant shall develop a preferred route within the above defined corridor for the shared-use, Olympic Discovery Trail.  In conjunction, the consultant shall also analyze the need, probable use, and potential benefits of the trail.

Evaluation Process

The consultant shall compose an evaluation process for identifying the preferred route for the trail, considering, among other things, construction economy, topography and natural features; ADA/AASHTO requirements, etc.; length; infrastructure and utilities (?); access points; road and highway intersections and crossings; connectivity to existing facilities and communities; landowner and public agency acceptance (subject to negotiation of the terms of acquisition and use); probable effect on property values; nature of  right-of-way acquisition (ROW) (fee simple, easement, etc.); security of (existing?) infrastructure and (proposed?) facilities; trail user safety; buffer requirements; ease of permitting; habitat constraints; emergency vehicle accessibility; aesthetics; user experience; views; convenience;  maintenance responsibilities and associated costs; and potential revenue sources associated with trail construction and maintenance.

Deliverables

Utilizing the above evaluation process, the consultant shall identify potential route alternatives developable at a reasonable cost within the corridor and determine a preferred route alternative.  The preferred alternative shall be conceptually supported by the citizens of Jefferson County as well as acceptable to the subject landowners over which the proposed route runs (subject to negotiation of the terms of ROW acquisition, development and use).  

The consultant shall provide both paper and electronic documents detailing the preferred route which include, but are not limited to: trail (plan) location and stationing (with precision sufficient for initial design); cross sections; trail grades and associated features as required; necessary bridges and/or culverts; road crossings; property ownerships; zoning and land-use considerations/restrictions; probable logging dates (?); streams, wetlands, and/or other environmentally sensitive areas; existing and planned trail amenities (water, trailheads, signage, toilet facilities, etc.); views; existing infrastructure and utilities(?); significant topographical features, including steep grades; existing roads, trails and/or easements, etc.; current and expected future usages (?); and graphic scale/legend(s).

The consultant shall prepare a cost estimate including the costs of: required ROW acquisition; 100% PS&E preparation (including permitting); construction (including const. engineering); maintenance; and infrastructure security (?), for the preferred trail route.  The cost estimate shall also include an analysis of the expected cost as proportionate to trail need and probable use.

The consultant shall also prepare detailed trail design guidelines that incorporate AASHTO/ADA guidelines as well as other applicable trail design guidelines.  The design guidelines shall describe typical trail cross-sections, on-street treatments, trail/street intersections, creek crossings, road crossings, preferred trail surfaces, signing and pavement markings, lighting, drainage/stormwater, wayfinding signage, photo examples of typical, appropriate designs.  The design guidelines shall incorporate a combination of proven designs, best practices, and trail design information on the PTC - ODT website.  The design guidelines shall include a glossary of terms, definitions of acronyms, and explanations of local jargon or atypical terminology.

The consultant shall prepare a project schedule which includes necessary meetings with the County at key decision points.

Site Visits

The consultant shall begin the route study with a site visit and stakeholder meeting.  Thereafter, the consultant shall visit the site as reasonably necessary to adequately develop the preferred trail route per the above described criteria.

Phasing

The consultant shall identify possible phases for the design and/or development of the preferred trail route.

Potential Funding Sources

The consultant shall identify potential funding sources, including federal, state, county, and other local sources; foundations; businesses; organizations; and individuals.  The consultant shall set forth a current schedule(s), if any, for applicable funding applications, etc. 

Coordination with other Public Entities

The consultant shall coordinate with other public entities (including the City of Port Townsend, Jefferson County PUD#1, WSDOT, Anderson Lake State Park, and the Department of Natural Resources) to garner support to be utilized in arriving upon the preferred route, including their willingness to coordinate with Jefferson County by developing and/or maintaining (?) parts of the trail on their properties.

The consultant shall coordinate with the U.S. Forest Service and the Pacific Northwest National Scenic Trail Advisory Council in identifying the preferred trail route and possible funding sources for the trail.

Public Participation

The consultant shall provide public outreach including, but not limited to, the following:

Conduct interviews with community representatives, user groups, partner agencies, neighborhood residents, businesses, and neighboring property owners to identify potential issues and define desired goals, priorities and results.

Use electronic means, including social media, to solicit public input.

Plan/organize, legally publicize, and facilitate at least one open house to solicit ideas from citizens, potential users, adjacent property owners, partner agencies and other interested parties.  At the open house, route alternatives, graphics, cross-sections, and design components shall be presented to the public for their feedback. The open house shall be a participatory session with the opportunity for community members to provide immediate feedback, and to develop a sense of public preferences about the function, design, alignment, and identity of the trail alternatives. 

Final Report

The consultant shall provide a written final report that describes the work performed. It will: identify in detail the need, probable use, and benefits of the trail; describe and map the design and route for the trail, and explain in detail the reasons for its selection; identify the subject property owners (public and private) whose property the preferred route will be located on (subject to negotiation of the terms of acquisition, development and use); identify the most probable type of acquisition (fee simple, easement, etc.); provide estimates of the costs of acquisition, design, construction and maintenance for each phase of construction; report the results of the public engagement process; and include the detailed trail design guidelines.  The final report shall include an Executive Summary.  Twenty-five paper copies and an electronic copy of the final report shall be provided.

Eric explained that the draft SOW will likely have to be further altered to fit into the County’s typical contract format.  He suggested that it might be useful to review his proposed changes to make sure we're on the same page.

A few days later Jeff Selby and I met with Eric to discuss the status of the project.  Among other things, Eric described the severe road problems in the west end that were requiring a lot of Public Works time, and the continuing need to address the Discovery Bay section funding before moving on to the Eaglemount project. 

I subsequently talked with Darryl Jennings at the RCO, who indicated that sooner or later its contract with the County would need to cover all three elements of the legislation:  planning, acquisition and development.  In response, I drafted and sent to Eric a form of RCO/County contract plus this “Project Summary and Scope of Work” for all three parts of the $1 million legislative authorization: 

Project Summary and Scope of Work

Planning, Acquisition, and Development -- Olympic Discovery Trail Project

This is a project summary and scope of work for planning, acquisition, and development of the Olympic Discovery Trail from Discovery Bay at the SR-20/US 101 intersection to the trail's intersection with the Larry Scott trail at Milo-Curry Road (the “trail”), in Jefferson County Washington (the “County”), within the corridor shown on the attached map (the “map”), utilizing a maximum of $1,000,000 of unused funds (the “funds”) appropriated for the Recreation and Conservation Office (the “RCO”) by Section 3026 of Washington Engrossed Substitute House Bill No. 2380, signed by the Governor on April 18, 2016.

The project shall be in three parts, as set forth below:  (1) planning;  (2) acquisition; and (3) development.

1.      PLANNING.

Planning for the trail will be carried out in accordance with RCO Manual 2, Planning Policies and Guidelines, dated March 2016 (the “planning manual”). 

Consultant

The County will engage a qualified trail planning consultant to plan a route for the trail.  The consultant will be selected from the Municipal Research Services Center (MRSC) Shared Rosters, utilizing the County’s established consultant selection process. 

Cost

The cost of route planning by the consultant shall not exceed $100,000. 

Objective

The consultant shall determine a preferred route within the above defined corridor for the shared-use, Olympic Discovery Trail.  In conjunction with determining a preferred route, the consultant shall analyze the need, probable use, and potential benefits of the trail.

Evaluation Process

The consultant shall compose an evaluation process for identifying the preferred route for the trail, considering, among other things, construction economy; topography and natural features; ADA/AASHTO guidelines, and any other applicable guidelines; length; existing infrastructure; access points; road and highway intersections and crossings; connectivity to existing facilities and communities; landowner and public agency acceptance (subject to negotiation of the terms of acquisition and use); probable effect on property values; nature of the right-of-way (“ROW”) acquisition (fee simple, easement, etc.); security for existing or planned infrastructure and facilities (such as the City of Port Townsend waterworks); trail user safety; buffer requirements; ease of permitting; habitat constraints; emergency vehicle accessibility; aesthetics; user experience; views; convenience; maintenance responsibilities and associated costs; and potential revenue sources (such as trail sponsor revenues).

Deliverables

Utilizing the above evaluation process, the consultant shall identify potential route alternatives developable at a reasonable cost within the corridor, and shall determine a preferred route alternative.  The preferred route alternative shall be conceptually supported by the citizens of the County as well as acceptable to the subject landowners over whose land the proposed route runs (subject to negotiation of the terms of ROW acquisition, development and use).  

The consultant shall provide both paper and electronic documents detailing the preferred route alternative which include, but are not limited to:  location and stationing (with precision sufficient for initial design); cross sections; trail grades and associated features as required; necessary bridges and/or culverts; road crossings; property ownerships; zoning and land-use considerations/restrictions; streams, wetlands, and/or other environmentally sensitive areas; existing and planned trail amenities (water, trailheads, signage, toilet facilities, etc.); views; significant topographical features, including steep grades; existing roads, trails and/or easements, etc.; and graphic scale/legend(s).

The consultant shall prepare a cost estimate including the costs of: required ROW acquisition; 100% PS&E preparation (including permitting), construction (including const. engineering), and maintenance.  The cost estimate shall also include an analysis of the expected cost as proportionate to trail need and probable use.

The consultant shall also prepare detailed trail design guidelines that incorporate AASHTO/ADA guidelines as well as other applicable trail design guidelines.  The design guidelines shall describe typical trail cross-sections, on-street treatments, trail/street intersections, creek crossings, road crossings, preferred trail surfaces, signing and pavement markings, lighting, drainage/stormwater, wayfinding signage, photo examples of typical, appropriate designs.  The design guidelines shall incorporate a combination of proven designs, best practices, and trail design information on the PTC - ODT website.  The design guidelines shall include a glossary of terms, definitions of acronyms, and explanations of local jargon or atypical terminology.

The consultant shall prepare a project schedule which includes necessary meetings with the County at key decision points.

Site Visits

The consultant shall begin the route study with a site visit and stakeholder meeting.  Thereafter, the consultant shall visit the site as reasonably necessary to adequately develop the preferred trail route per the above described criteria.

Phasing

The consultant shall identify possible phases for the design and/or development of the preferred trail route.

Potential Funding Sources

The consultant shall identify potential funding sources, including federal, state, county, and other local sources; foundations; businesses; organizations; and individuals.  The consultant shall determine whether funds can be used to meet match requirements for other potential funding sources.  The consultant shall set forth a current schedule(s), if any, for applicable funding applications, etc.

Coordination with other Public Entities

The consultant shall coordinate with other public entities (including the City of Port Townsend, Jefferson County PUD#1, WSDOT, Anderson Lake State Park, and the Department of Natural Resources) to garner support or commitments regarding the preferred route.

The consultant shall coordinate with the U.S. Forest Service and the Pacific Northwest National Scenic Trail Advisory Council in identifying the preferred trail route and possible funding sources for the trail.

If the preferred route for the trail will have one or more sponsors in addition to the County (for example, if other local, state or federal agencies team up to provide financial support for the trail or to own specific parcels to be used for parts of the trail), the consultant shall identify the roles and responsibilities of each sponsor

Public Participation

The consultant shall provide public outreach including, but not limited to, the following:

Conduct interviews with community representatives, user groups, partner agencies, neighborhood residents, businesses, and neighboring property owners to identify potential issues and define desired goals, priorities and results.

Use electronic means, including social media, to solicit public input.

Plan/organize, legally publicize, and facilitate at least one open house to solicit ideas from citizens, potential users, adjacent property owners, partner agencies and other interested parties.  At the open house, route alternatives, graphics, cross-sections, and design components shall be presented to the public for their feedback. The open house shall be a participatory session with the opportunity for community members to provide immediate feedback, and to develop a sense of public preferences about the function, design, alignment, and identity of the trail alternatives. 

Final Report

The consultant shall provide a written final report that describes the work performed. It will: identify in detail the need, probable use, and benefits of the trail; describe and map the design and route for the trail, and explain in detail the reasons for its selection; identify the subject property owners (public and private) whose property the preferred route will be located on (subject to negotiation of the terms of acquisition, development and use); identify the most probable type of acquisition (fee simple, easement, etc.); provide estimates of the costs of acquisition, design, construction and maintenance for each phase of construction; report the results of the public engagement process; and include the detailed trail design guidelines.  The final report shall include an Executive Summary.  Twenty-five paper copies and an electronic copy of the final report shall be provided.

2.      ACQUISITION.

After expenditures of funds for planning, and following approval of acquisitions by the Jefferson County Board of County Commissioners (the “BOCC”), remaining funds may be used by the County to acquire real property for the trail. 

County acquisitions for the trail will be carried out in accordance with RCO Manual 3, Acquisition Projects, dated February 4, 2016 (the “acquisitions manual”). 

Real Property Interests that May be Acquired

As set forth in the acquisitions manual, funds may be used be used by the County to buy land in fee or to buy an interest in the land, such as an easement.  Any acquisition of less than fee title must be for a minimum of  50 years. 

Survey

A professional survey is not required for acquisitions.  However, if a survey has been completed with RCO funding and the property is acquired successfully, the survey will be recorded with the county auditor and a copy provided to RCO.

Acquisition Procedures

As required by the acquisitions manual, the County will follow the acquisition procedures in RCW 8.26.180 and Chapter 468-100 WAC.

Acquisition Costs

Eligible acquisition costs are identified in RCO Manual 8, Reimbursements. 

  

Deed of Right

The County will record a Deed of Right on the title of the property acquired, conveying to the people of the State of Washington the rights to preserve, protect, and/or use the property for public purposes consistent with the grant program and the project agreement. A property boundary map for each parcel acquired will be filed with the Deed of Right.

Joint and Cooperative Projects

If the trail as planned and approved by the BOCC has one or more sponsors in addition to the County, the County shall be the primary trail sponsor.  Additional sponsors shall comply with the Washington Interlocal Cooperation Act, RCW 39.34, or shall execute an agreement, policy statement, or resolution in accordance with RCO requirements set forth in the acquisitions manual.

3.       DEVELOPMENT. 

After expenditures of funds for planning and acquisitions, approval of development by the BOCC, and demonstration to the RCO of control and tenure of the trail properties through fee title, leases, use agreements, or easements, any remaining funds may be used by the County for development of the trail. 

Development of the trail will be carried out in accordance with RCO Manual 4, Development Projects, dated March 2016 (the “development manual”). 

The County may develop the trail in phases, in accordance with the development manual.

Utilizing the County’s established selection process, the County will engage engineers and consultants to begin the preparation of site plans, schematic and final drawings, and normal structural, civil, mechanical, and electrical design work.

The “planning” section of this draft uses the statement of work for planning that Eric previously reviewed, which I edited per his comments and suggestions.  

PNNST Advisory Council Meeting

In early May, the 28-member PNNST Advisory Council, together with a dozen or more U.S. Forest Service staff working on the PNNST project, met for two days, plus a field day, at the Port Townsend Maritime Center.  Thus, fifty-Plus individuals (including spouses, etc) stayed in County hotels and motels, ate in County restaurants, shopped in County stores, etc, for three or more days.  The PNNST attendees likely spent up to $50,000 in the area, including the Marine Center rental charges.   This is a perfect  example -- even before the Eaglemount section is developed – of how the trail can contribute to the economies of the City and the County.

This directly relates to one of the key elements of the County’s planning study: the balancing analysis of the benefits of the trail as compared to the costs of the trail.  To move beyond planning, to acquisition and development, the County Commissioners will need to be convinced that the costs of the trail do not outweigh its benefits.

Finally, during the PNNST Advisory Council meeting, I made a brief presentation on the progress of funding for the Eaglemount section.  It seemed to be well received.  As the meeting progressed, however, it became evident that a few of the council members disfavored sharing the PNNDT with bicyclers. But towards the end of the meeting, the Council voted on appropriate uses for the National Scenic trail and overwhelming supported multiple uses, including horses, cyclists and hikers.   

There was no mention in the discussion about what the National Trails System Act states regarding potential PNNST uses (and possible limitations on uses).  The Act allows many kinds of uses on designated components of the trail, and requires that each segment of the trail shall be designed to "harmonize with and complement any established multiple-use plans for the specific area in order to insure continued maximum benefits from the land….”   I believe the Larry Scott Memorial Trail and the Eaglemount section of the ODT, are “established multiple-use plans for the specific area,” within the meaning of the Act.