BOARD OF SUPERVISORS BUSINESS MEETING ACTION ITEM. Design Endorsement for Sterling Boulevard Extension

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1 Date of Meeting: July 20, 2017 # 6 BOARD OF SUPERVISORS BUSINESS MEETING ACTION ITEM SUBJECT: ELECTION DISTRICT: CRITICAL ACTION DATE: STAFF CONTACTS: Design Endorsement for Sterling Boulevard Extension Broad Run At the pleasure of the Board Khattab Shammout, Transportation and Capital Infrastructure Joe Kroboth, III, Transportation and Capital Infrastructure PURPOSE: To seek design endorsement from the Board of Supervisors (Board) for Sterling Boulevard Extension from Pacific Boulevard to Moran Road. RECOMMENDATION: Staff recommends the Board endorse Alternative #2 (Northern T ) and direct staff to proceed with the completion of the final design and construction documents for the construction of the Sterling Boulevard Extension from Pacific Boulevard to Moran Road. BACKGROUND: To improve the road network to the proposed Loudoun Gateway Metro Station, the Board at the 2013 Transportation Summit included the extension of Sterling Boulevard from Pacific Boulevard to Moran Road as one of its top transportation priorities. Utilizing the task order Roadway/Transportation Design Services Contract, a purchase order in the amount of $1,687, was issued to ATCS, P.L.C. (ATCS) on June 18, 2015, to perform the design of the Sterling Boulevard Extension from Pacific Boulevard to Moran Road. The contract s scope of work includes all engineering, surveying, traffic studies, environmental services, public information meetings, and construction estimates necessary to prepare a complete set of design and construction plans. On May 26, 2016, a public information meeting was held to discuss the Sterling Boulevard Extension project and to solicit feedback. At the meeting, ATCS provided exhibits showing a preliminary roadway alignment and associated stormwater management facilities closely resembling Alternative #1 (Roundabout). Approximately a dozen members of the public attended the meeting with the majority of the attendees having an interest in commercial parcels along the roadway corridor. Although most attendees were in favor of the road, they expressed concerns that the proposed right-of-way dedication would compromise their ability to use or develop their properties to the extent desired. Some were not in favor of dedicating any right-of-way to the County while other property owners were willing to work with the County on right-of-way acquisition needs. In addition, several members of the public questioned the locations of proposed stormwater management facilities and inquired if the facilities could be moved or redesigned to minimize impact to their parcels. None of the meeting attendees were residential

2 Item 6, Design Endorsement of Sterling Boulevard Board of Supervisors Business Meeting July 20, 2017 Page 2 property owners in the vicinity of the project. Written comments received after the May 26, 2016, meeting are included as Attachment 1. After receiving public feedback, three alignment alternatives were developed for the extension of Sterling Boulevard. Due to existing buildings and other site constraints, the three alignments follow the same path from Pacific Boulevard through Relocation Drive to the west side of the DCT Dulles Downs LLC property. Specifically, the proposed alignments will bi-sect Prologis Park between Pacific Boulevard and Relocation Drive. The intersection at Relocation Drive will be improved to add left and right turn-lanes on northbound and southbound Relocation Drive. A traffic signal is not warranted nor planned for this project at the Relocation Drive intersection. Stop signs are planned on Relocation Drive for traffic control. West of Relocation Drive, the proposed alignments are routed between the DCT Dulles Downs LLC development to the north and commercial properties to the south. A vicinity map is provided as Attachment 2. To complete the connection of Sterling Boulevard to Moran Road, the road must traverse through a 5.18 acre vacant parcel west of the DCT Dulles Downs LLC property that is currently being used as a contractor storage lot and a acre parcel owned by a subsidiary of Waste Management and operated as a waste transfer station, maintenance facility and storage yard. To navigate through these two properties, three alternative alignments have been developed. Alternative #1, (Roundabout) Figure 1 shows the Alternative #1 alignment that includes a roundabout where Sterling Boulevard intersects Moran Road. Figure 1 Alternative #1

3 Item 6, Design Endorsement of Sterling Boulevard Board of Supervisors Business Meeting July 20, 2017 Page 3 The Alternative #1 alignment minimizes impacts to the 5.18-acre undeveloped property and routes the road around the existing building and the majority of the storage yard on the Waste Management property. This alignment does isolate the northern portion of Waste Management s property, creating a 7.85 acre remnant. A portion of Moran Road would be relocated to the east and the existing roadway would be converted into a service road to access existing businesses. The acre undeveloped parcel to the west of the Waste Management property, a 2.33 acre portion of the parcel north of the Waste Management property, and a 5.53 acre portion of the parcel southwest of the Sterling Boulevard and Relocation Drive intersection would need to be acquired for stormwater management facilities. A plan showing this alignment is provided as Attachment 3. Alternative #2, (Northern Alignment) Figure 2 shows the Alternative #2 alignment that includes a tee intersection where Sterling Boulevard intersects Moran Drive. Since it is not warranted, a signal will not be installed at this intersection. This alignment reduces the amount of right-of-way that must be acquired from the Waste Management property, but would create a 5.45 acre remnant on the northern portion of the property. This alignment also requires the total acquisition of the acre undeveloped property directly east of the Waste Management property. A portion of Moran Road would be relocated to the east and the old roadway would be turned into a service road to provide access to existing businesses. Stormwater management would be provided on the 5.18-acre undeveloped property, the 2.03-acre undeveloped parcel to the west of Waste Management s site, on a 5.52 acre portion of the parcel southwest of the Sterling Boulevard and Relocation Drive intersection, and a 2.5 acre County owned property approximately 600 feet south of the roadway alignment. A plan showing this alignment is provided as Attachment 4. Figure 2 Alternative #2

4 Item 6, Design Endorsement of Sterling Boulevard Board of Supervisors Business Meeting July 20, 2017 Page 4 Alternative #3, (Southern Alignment) Figure 3 shows the Alternative #3 alignment that creates the most direct route of Sterling Boulevard between Pacific Boulevard and Moran Road, includes a tee intersection where Sterling Boulevard intersects Moran Road, minimizes the amount of land to be acquired from Waste Management, but it directly impacts the Waste Management existing operations and administration building requiring its onsite relocation. Since it is not warranted, a signal will not be installed at the Sterling Boulevard and Moran Road intersection with this project. Stormwater management would be provided on the Waste Management property, on a 4.81 acre portion of the parcel southwest of the Sterling Boulevard and Relocation Drive intersection, and a 2.5 acre County owned property approximately 600 feet south of the roadway alignment. A plan showing this alignment is provided as Attachment 5. Figure 3 Alternative #3 ISSUES: The roadway corridor for this segment of Sterling Boulevard traverses through a developed area and will impact existing businesses. In particular, right-of-way must be acquired from Waste Management for each alignment alternative. The amount of right-of-way that must be acquired will directly impact the roadway cost. Numerous underground utilities also exist within the roadway corridor and the selected alignment alternative will affect utility relocation costs. The geometric characteristics of each alignment alternative will have some effect on traffic operations. Alternative #3 requires an onsite relocation of existing administration and maintenance buildings. These building relocations can be timely, costly and would negatively impact the project schedule as the building relocations need to occur before road construction can be initiated or completed in this vicinity.

5 Item 6, Design Endorsement of Sterling Boulevard Board of Supervisors Business Meeting July 20, 2017 Page 5 Traffic Operations: None of the three alignment options propose traffic signals along this segment of Sterling Boulevard as signal warrants are not met. Only the existing signal at Sterling Boulevard and Pacific Boulevard will be modified as part of this project. Alternative #1 includes a roundabout that will affect the flow of through traffic on Sterling Boulevard. Specifically, this alternative includes one through lane by-passing the roundabout in the eastbound direction (the second eastbound lane must navigate through the roundabout) and all westbound traffic must navigate through the roundabout in one lane (the second lane ties into northbound Moran Road and does not connect back to Sterling Boulevard). Alternatives #2 and #3 maintain a four-lane divided section of Sterling Boulevard for the entire roadway segment. As a result, Alternative #1 will reduce the through speed of Sterling Boulevard and reduce the through capacity of the roadway compared to Alternatives #2 and #3. Alternative #1 provides an intersection configuration that allows for future expansion of Moran Road to four lanes as it is currently depicted on the Countywide Transportation Plan (CTP) without introducing a future signal along this segment of Sterling Boulevard, but requires the transition of Moran Road to two lanes beyond the roundabout. With Alternatives #2 and #3, future expansion of Moran Road to four lanes including a bridge over Route 28 as currently depicted on the CTP will likely require the installation of a signal at the Sterling Boulevard and Moran Road tee intersection in the future due to the projected traffic increase on Moran Road. As part of the Silver Line Comprehensive Plan Amendment (CPAM ), the ultimate condition of Moran Road is being altered from a four lane urban road to a two lane urban road with bicycle lanes. Therefore, the need to expand Moran Road in the future may not be required. Right-of-Way Acquisition: A sizable right-of-way acquisition effort is anticipated for this project as all the proposed alignments are traversing a significantly developed and narrow corridor. Alternative #1 requires acquisition of approximately 19.0 acres of right-of-way along with 0.4 acres of permanent easements and 4.4 acres of temporary easements. Right-of-way acquisition will affect six parcels. Alternative #2 requires acquisition of approximately 18.6 acres of right-of-way along with 0.4 acres of permanent easements and 6.1 acres of temporary easements. Right-of-way acquisition will affect six parcels. Alternative #3 requires acquisition of approximately 12.5 acres of right-of-way, will require the relocation of approximately 38,000 square feet of buildings, along with 0.3 acres of permanent easements and 2.7 acres of temporary easements. Right-of-way acquisition will affect five parcels. It is important to note that sizable right-of-way acquisition will be required from the Waste Management property for all alternatives. On March 16, 2017, Department of Transportation and Capital Infrastructure (DTCI) staff met with representatives of Waste Management and reviewed the three alignment alternatives. Waste Management expressed its desire to work with the County to develop the road and to convey the necessary land as long as Waste Management receives equitable compensation for the land and facility adjustments and the impacts do not restrict the facility s current operations.

6 Item 6, Design Endorsement of Sterling Boulevard Board of Supervisors Business Meeting July 20, 2017 Page 6 After further discussion, Waste Management concluded they could not support Alternative #1 since the large amount of land to be acquired by the County would have too great an impact on their facility operations. Waste Management agreed to further analyze Alternatives #2 and #3 to determine facility modifications necessary to maintain their current operations. Based on initial feedback from Waste Management, Alternative #2 would require some reconfiguration of the facility parking lot and storage areas. Alternative #3 would require the construction of new office space, truck maintenance and transfer buildings as well as new parking, storage areas, and scale. Utility Relocation: Existing utilities including overhead and underground electrical, overhead cable television, underground telephone, underground fiber optic communication, underground water, underground sanitary sewer, and underground natural gas are present within the roadway corridor. The three alternative alignments impact these utilities in various ways. The preliminary estimated cost to relocate utilities impacted by Alternative #1 is approximately $3,400,000, relocation cost for Alternative #2 is approximately $2,600,000, and relocation cost for Alternative #3 is approximately $1,500,000. Project Schedule: The road design is at approximately 30%. The design alternative must be selected to progress the design further. The time needed to progress the design to completion, to acquire rightof-way, and to relocate utilities is approximately 24 to 30 months. The time necessary to construct the road is approximately 15 months. If Alternative #3 is utilized, an additional 18 to 24 months are needed since construction of the road cannot commence on the Waste Management property until the new office space, truck maintenance building, transfer building, storage areas, and parking areas are built and the existing facilities are demolished. Therefore, the opening date for Alternatives #1 and #2 is approximately fall 2020 to spring The opening date for Alternative #3 is approximately spring 2022 to spring Overall Project Budget: Table 1 presents the estimated project costs for the three alternatives. Table 1 -- Preliminary Cost Estimates for Sterling Boulevard Extension Alternatives Project Activity Alternative #1 Alternative #2 Alternative #3 Design $1,800,000 $1,800,000 $2,000,000 Right-of-Way Acquisition $5,800,000 $5,400,000 $3,400,000 Utility Relocation $3,400,000 $2,600,000 $1,500,000 Construction (Including Contingency) $11,200,000 $9,800,000 $8,900,000 Testing and Inspection Services $2,000,000 $1,700,000 $1,400,000 Modifications to Waste Management Facility $3,800,000 $3,800,000 $4,800,000 Design and Construction of New Buildings $8,800,000 Total $28,000,000 $25,100,000 $30,800,000 Summary of Considerations: As noted above, this project is heavily dependent on acquiring right-ofway since the roadway corridor is located in a commercially developed area. In particular, all alternatives require the acquisition of right-of-way from the Waste Management property. Based on

7 Item 6, Design Endorsement of Sterling Boulevard Board of Supervisors Business Meeting July 20, 2017 Page 7 preliminary discussions with company representatives, Waste Management is willing to work with the County to develop Alternatives #2, or #3 if equitable compensation is provided for land acquired and impacted facilities are replaced. Waste Management does not support Alternative #1 since it will not allow their facility to operate at current capacity due to the proposed land area reduction. Although Alternative #3 is a more ideal roadway layout than Alternative #2, the cost to develop Alternative #3 exceeds the current project budget and will take 18 to 24 additional months to complete. Alternatives #2 and #3 have similar traffic operations and both alternatives provide for unimpeded flow through traffic on Sterling Boulevard. DTCI staff recommends Alternative #2 since it can be developed within the available budget, has an estimated cost $5,700,000 less than Alternative #3, and can be delivered approximately 18 to 24 months sooner than Alternative #3. FISCAL IMPACT: A total of $24,129,000 has been appropriated for the Sterling Boulevard Extension (Pacific Boulevard to Moran Road) capital project for design, right-of-way acquisition, utility relocation, and construction. The preliminary cost estimates for the three alternatives show all the alternatives are over the appropriated budget. Alternative #2 has the least impact with preliminary costs approximately $1,000,000 over the existing budget. Alternates #1 and #3 have preliminary costs approximately $3,900,000 and $6,700,000 over the existing budget, respectively. ALTERNATIVES: 1. The Board could endorse Alternative #2 and request staff to monitor project costs as the road design advances and more refined cost estimates are developed to determine if additional funding is required. 2. The Board could endorse Alternative #3 and request staff to develop a plan to fund the outstanding costs not currently budgeted in the project. 3. The Board could endorse Alternative #1 and request staff to develop a plan to fund the outstanding costs not currently budgeted in the project. 4. The Board could request staff to consider another alternative. DRAFT MOTIONS: 1. I move that the Board of Supervisors endorse Alternative #2 (Northern Alignment) for the Sterling Boulevard Extension project as outlined in the July 20, 2017, Board of Supervisors Business Meeting Action Item and request staff to monitor project costs as the road design advances and more refined cost estimates are developed to determine if additional funding is required. OR 2. I move that the Board of Supervisors endorse Alternative #3 (Southern Alignment) for the Sterling Boulevard Extension project as outlined in the July 20, 2017, Board of Supervisors Business Meeting Action Item and request staff to develop a plan to fund the outstanding costs not currently budgeted in the project.

8 Item 6, Design Endorsement of Sterling Boulevard Board of Supervisors Business Meeting July 20, 2017 Page 8 OR 3. I move an alternate motion. ATTACHMENTS: 1. Written Feedback from May 26, 2016, Public Meeting 2. Vicinity Map 3. Design Alternative #1 4. Design Alternative #2 5. Design Alternative #3

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26 6/20/2017 Google Maps d sd ow ns LL C d ulle 28 var TD Route e DC log is P ark Pac Pro ific Rel Bo oca ule tion Mor Driv oa an R vard ule g Bo lin Ster Imagery 2017 Google, Map data 2017 Google 500 ft ATTACHMENT ,1028m/data=!3m1!1e3?hl=en 1/1

27 Figure 1 Alternative #1 ATTACHMENT 3

28 Figure 2 Alternative #2 ATTACHMENT 4

29 Figure 3 Alternative #3 ATTACHMENT 5