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6A - Public hearing and consideration of approval of Master Plan and renovation option for the re-de (2)CITY OF BOULDER , w PARKS AND RECREATION ADVISORY BOARD AGENDA ITEM ,~ MEETING DAT'E: Anri123. 2001 (Agenda Item Preparation Date: April 17. 2001) AGENDA TITLE: Pubtic Hearing and consideration of approval of a Master Plan and renovation option for the re-development of t6e former Angel Pines Country Club at Flatirons Golf Course. REQUESTED BY: Chris Andersen, Deputy City Manager Douglas Hawthome, Acting Co-Director, Parks and Recreation Department Linda Kotowski, Acting Co-Director, Parks and Recreation Department Chase Weir, Golf Professional, Flatirons Golf Course r ~ FISCAL IMPACT: The estunated development costs and wananted mvestment for each opuon is identified in 2001 dollars Estimated Development Costs for Option t11= $ 3,216,000 Estimated Warranted Investment for Option Ml =$1,351,000 Estimated Development Costs for Oprion #2 =$ 3,922,000 Estimated Wananted Investment for Oprion #2 =$3,590,000 Estimated Development Costs for Opnon #3 =$ 5,072,000 Estunated Wananted Investment for Option #3 =$3,585,000 I. PURPOSE: The purpose of this memo is to provide specific mformation and cost analysis for three potential future planning and development options of the Angel Pines facihty at Flatirons Golf Course. The Department has contracted with Odell Architects who is presentmg economic data including potential revenues and expenditures of each option, and capital costs of implementmg the improvements identified in each option. The Parks and Recreanon Advisory Board is bemg asked to review the informanon and make a recommendation as to the option ~~ ~ . ~. for future development ~ II. COUNCIL GOAL: ~-' The Master Plan and re-development of the former Angel Pmes Country Club is consistent with the 2000/2001 Council Goal on Economic Sustamability The renovation of these facilines furthers the commumty goals and character, and encourages a strong sustamable economy to fund qualiry city services for all citizens. Additionally, this renovation is consistent with the goal of maintaming and improving existmg C~ty assets. III. BACKGROUND: The Pazks and Recreahon Advisory Board has had previous discusstons with staff and the consultant, Odell Architects, concerning this topic. Dunng the October 2000 meetmg, the Boazd discussed potenhal mmimum improvements and six broad design ophons After further discussions with the Design Advisory Committee, and comments received at a publ~c meehng, the Pazks and Recreahon Advisory Boazd m December 2000 discussed two potenhal des~gn ophons (which were narrowed from the ongmal six) for the re-development of the former Angel Pmes Country Club. After reviewmg the two options with staff and Odell Arclutects, rt appeazed that the former Option #1 could not be economically supported Ophon #1 was the plan that preserved the swimmmg pool and locker room facil~hes and remodeled the mtenor of the buildmg, only to teaz down the eastern pornon of the renovated facihty when the swimmmg pool is removed. It was decided to develop an ophon that preserves the swimmmg pool for an extended penod of hme as well as provtde a sepazate ophon that keeps the pool for a shorter ''"'~s penod of Ume '"' IV. ANALYSIS: Staff is recommendmg consideration of the followmg three options. The guidmg theme of these ophons are: Opt~on 1- util~ze and renovate existing facilines and preserve the pool for an extended period of time, Ophon 2- remove every facility and build new, and, Option !~3 - unhze existing fac~lities, mcluding the pool, for a short time period, then build new. As was discussed m previous discussions, each of the ophons recommends minimum improvements, no matter which of the three options the Board decides to approve. The mmunum improvements are as follows 1) Improved amval and departure at Arapahoe Avenue This w~ll mclude conductmg a traffic study analysis of Arapahoe Avenue and explorahons of mcludmg a traffic light on Arapahoe Avenue at the golf course entrance 2 J Construct a 55 foot height fencmg along both sides of the dnvmg range 3) Improve parkuig layout and signage/wayfindmg/lighhng 4) Improved service and delivery areas 2 ~ 5) Remove the two tenms courts and use azea for a different purpose ~.~. ~ ~.... The Boazd previously asked staff for mformat~on pertammg to tenms court faciliries m the surroundmg azea. Staff surveyed local park and recreation facihhes and pubhc school facilines withm one mile of Flahrons Golf Course. Based on our analysis, we have found there aze 11 public tenms courts withm one m~le oF Flatuons Golf Course Addrtionally, there aze i l tenms courts m pnvate homeowner associahon azeas m Meadow Glenn, located south of the golf course. A map showmg the locahon of the pubhc tenms courts ~s shown m Attachment A. A. Descri~rion of Options An Execuhve Summary of the Master Plan outhnmg the three ophons m a conceptual plan, idenhfymg key financial pro~ections and summary cost eshmates m 2001 dollars as well as assumphons of potenhal development phases ~s ~denrified m Attachment x tion #1 (Phased approach - utilize and renovate existing facilities) Assumes existing pool remains longer than S-7 years Assumes costs associated with pool improvements are responsibility of lessee, except for minimum capital improvements to the pool in Phase lA. Phase IA • Implement mmunum improvements outlmed above and provide an addihonal $500,000 to ~,.., address ADA and deferred mamtenance of the pool ~ Phase 1B • Remodel exishng east pomon of Angel Pmes bmldmg (extenor and mtenor) wrth improvements for golfers, banquet and catenng. Remodel facthty to address ADA and hfe/safety issues • Mmor tmprovements to exishng pro shop - fimsh upgrades, new office and storage space located at exishng outdoor deck Phase IC • Remove exishng pool facihty m its enrirety • Ut~hze former pool area for goif dmmg/pav~hon expansion, outdoor deck and pracrice area • New outdoor event azea where tenms courts were located • Practice facility improvements Option #2 (Remove every building, develop new facilities which complement golf functions only) • Implement amval and departure improvements, fencing along the dnvmg range as part of the muumum improvements outhned above • Remove all extshng facihhes (pro-shop, enhre Angel Pmes buildmg, Tenms Courts, Pool) ' ~ 3 ~ • Construct a new, approximately 14,000 gsf golf clubhouse and separate cart storage building and some covered dnvmg range stahons w/landscapmg ,'"~,, • New pract~ce facihries ad~acent to clubhouse and dnvmg range -- • Widen and lengthen dnvmg range to accommodate 8-10 new stat~ons • Reconfigure the pazkmg lot tion #(Phased approach - Combination of New and Existing Facilities) Assumes existing poo[ remains no longer than 2 years Assumes any costs vssociated with pool improvements to be the responsibility of lessee Phase 3A • Implement mmunum ~mprovements outhned m Ophon 1 A, except there is no capital fundmg for the pool improvements Phase 38 • Remove east portion of existmg Angel Pines Buildmg (approximately 5,000 gsfl to allow for construcuon of new golf clubhouse facihty • Remove exishng pro shop buildmg • Construct a new, 6,500-gsf-golf clubhouse w/landscapmg Buildm~'~vould house a pro shop, bar-gnlle, kitchen (design rough for future expansion of banquet program), rest rooms, office • Construct a new 5,000 s.f cart storage buildmg • New pracrice facihhes ad~acent to new golf clubhouse ~ Phase 3C ~- • Remove the remamder of exishng Angel Pmes Buildmg (after Spice of Life Operahng Agreement ends m 12 yeazs, or when Spice of Life grves City nohce to termmate their Agreement) • Construct a 2,500 gsf event dmmg space to new golf clubhouse • Reconfigure pazkmg lot to allow for expansion of dnvmg range • Enlazge dnvmg range by 8-10 new stahons B. Financial Analysis Attachment B includes potential financial mformation regarding potennal net income to the City, warranted investment, estimated development costs for each option and phase. It is assumed that after each development m Option lb and c, Option 2 and Option #3b and c that additional revenues will be generated from increased banquet and food service sales and increases in greens fees and merchandise spendmg Page 1 1-6 of Attachment B provides an overall summary of mvestment options. As the summary concludes, m terms of pro~ected warranted level of mvestment versus development costs, Oprion 2 is the most cost effecnve. The spreadsheet below idennfies and compares the summary of option development costs m 2001 dollars and development costs m the assumed start year of construction based on the phasmg of two of the proposed opnons. ~ ,.~. Flatirons Golf ~,,,. Course Financial summary of Improvement Options Option Development Costs Development Costs in 2001 Dollars in Assumed Construction Start Year(a) 1a $1,613,00000 $1,713,00000 ~ b $1,2a0,ooo 00 $1,426,000 00 1 C $363,000 00 $526,000 00 ToWI $3,216,000.00 $3,665,000 00 2 $3,922,000 00 $4,510,000 00 Total 53,922,000.00 ~4,510,000.00 3a $1,113,000 00 $1,213,000 00 3b $2,ia~,ooo 00 $2,5s8,o00 00 3c S~,s~2,oo0 00 $3,062,000 00 Total 55,130,000.00 $6,873,000.00 Footnotes ~ (a) Pro~ect Start Yeaz Ophon Opt~on la Fall-2002 2 Fall-2003 lb Fall-2003 3a Fall-2002 lc Fall-2008 3b Fall-2004 3c Fall-2012 V. PUBLIC CONIl~4ENT AND PROCESS: 1'he pubhc has had many opportumhes to provide comments and direction for this pro~ect. There have been two public meetings associated with the Master Plan process, which occurred on September 26, 2000, and December 14, 2000. Additionally, the Design Advisory Committee, consisting of inembers of key public groups such as the Poseidon's Swim Team, and Boulder Golf Association has had 6 meetmgs. Finally, the PRAB has discussed this item at two regularly scheduled and advertised board meetings m October and December 2000. This public heanng was nohced in the Daily Camera VI. POLICY ISSUES WITH THE THREE OPTIONS AND OUESTIONS FOR THE BOARD ~' s ~ Pool and associated locker room facilities - All of the options idenhfy removing the pool, -"'~ locker room and support facilrties at some future tune period. Option fil is the long-term ~-~' option wluch extends the period beyond 5-7 years, Option #2 removes the pool and locker rooms inuned~ately (upon available funding) and Option #3 is the short term option which removes the pool and locker rooms after 2 years Based on the previously ouUined informahon from the busmess plan discussed wrth the Board pnor to the sale, it appears there are major issues with the pool facility. There are ADA and deferred maintenance issues. The Poseidon's Swim Team leases the pool facility and assumes all of the costs associated with mamtenance and operations. Does the PRAB agree with the recommendation to remove the pool and locker room facilities at this site? 2 Banquet and Catenn~- a. Option 111 preserves the banquet and outside catenng facilities in ~ts' cunent size and use While Option #1 does not affect the Operating Agreement with Spice of Life, a portion of the renovahons idenhfied are m the leased space and may be dependent on Spice of Life providmg financial assistance with the Ciry to make improvements to their lease area. Opnon #1 does not address contmuing parkmg issues associated with large banquet events occuning at the same tune as pnme tune demand by the golfing public b. Option #2 removes the kitchen facility necessary for off-site catenng and develops a facility with a smaller banquet area and kitchen devoted to on-site activines only. Removwg all of the facilities and building new will elimmate the opportumty to host larger banquets and catering events at the faciliry Removmg all of the facilities unmediately after fundmg is secured will impact the ex~shng Operanng Agreement with Spice of Life. c. Option #3 keeps the banquet and catenng facilities m its location and s~ze through the remamder of the Spice of Life Operatmg Agreement, then removes the abihry for off- site catenng and develops a facihty with a smaller banquet space m the expanded clubhouse buildmg. Does the Board agree that some type of banquet facility is necessary for the economic sustainability of the facility dunng the off season~ Should the banquet and/or catenng funcrion and size be limited to on-s~te activities only based on the parking availability which will not unpact the golfing pubhc~ ~, Golf Dimng and Associated Pavihon Space - Opnon #1 provides for mimmal expansion of the golf dimng area (400 s.~ and pavihon space (except for the area where the tennis courts were located) until the swimming pool and related facilities are removed (after 5-7 years) Opnon t11 does not address key needs of the golfing pubhc which is the lack of su down 6 ~ ...! food service or tournament pavilion area if the pool remains 5-7 years or longer. Option #2 ,/"^, provides immediate abihties for these functions to occur Option #3 provides for these `~•~ functions after the pool and related facilines are removed after a short time penod (2 years) Does the Board agree that golfer duung and outdoor pavilion space should be provided and expanded from current levels? 4. Golf Pracrice and Dnvmg Range Space - Option kl does not provide for any expansion of the dnvmg range but may allow for some pracnce space areas after the swimming pool and related faciliries are removed m 5-7 years. Ophon tl2 provides for immediate expansion of the drivmg range (10 stalls) and provides for addihonal practice areas. Option #3 does not provide space for expansion of the driving range, nor additional practice space until the west end of the Angel Pmes Building is removed after the Spice of Life Operating Agreement ends (maximum of 12 years) and the Angel Pines Building is totally removed and parkmg is reconfigured. 5 Golf Cart Storaee - Option #1 does not provide any expansion of golf cart storage facilities to store all of the golf carts (75) near the pro shop. Option #2 provides adequate storage for a1175 golf carts m a separate structure which houses an approximate 10 heated dnving range stalls and golf trainers office and storage. Option !!3 provides adequate storage for a1175 golf carts m a separate structure which houses about 6 heated dnvmg range stalls. ~ Wlule having all golf carts stored near the operations center is not necessary, there are many tunes dunng tournaments where staff are called upon to move add~tional golf carts from the mamtenance facility. It is more e~cient to have all carts near the area where they are to be rented. Other policy issues to consider are as follows: tion 1 • As the Board has seen with other renovanons to existmg improvements (South Boulder Recreation Center), there are many unknowns when it comes to remodeling exisring facilihes. The clubhouse building is approachmg 50 years old, has much deferred mamtenance, and contains some asbestos that will need further study before renovations occur non • Removmg all of the facihties at once will cause disruphon and a potential loss of business duruig the construction phase that would extend mto the summer months. • Ophon #2 converts the facihty to a smgle focus, versus the multi-purpose facihry that cunently exists O tion 3 ~„. ~ v..~, Option k3 extends the phasmg penod to 12 years that will drive up costs of renovanons and construction of the various phases. Based on informanon previously reported, the phasing '~ cosu over a 12 year penod adds $1 8 million of additional costs due to inflahon to the project ~~~ VII. STAFF RECOMNIENDATION: Flatirons Golf Course is the only public golf course m the City of Boulder The golf course generates approximately one-fifth of the total revenue produced by this Department. The revenues generated at the golf course pay for all of rts' direct costs, raises an additional $200,OOO/year for the expansion fund for capital and major mamtenance of the golf course and grves back to the general fund excess dollars that support other park and recreation programs The Board has previously received informahon pertauring to the overall regional golf market and market trends for public golf in the Denver Metropolitan area. The region has seen a dramatic increase of public golf courses dunng the past decade. Many of these new public access courses are built with high qualiry support services that are attractmg many new golfers due to the population growth in the area and are also attractmg existing golfers from other communities. Staff believes that we are at a major crossroads as it relates to the future of this golf course. Flatirons Golf Course is approaching fifty years old. In discuss~ons from stakeholders and the general public in the two workshops, rt appears that the golf course grounds itself are an asset based on the outstandmg maintenance of the course and numbers of mature trees but the other support facilities are severely lacking and are old. In 2000, Flatirons Golf Course experienced ~-~, a net decrease of 6,402 rounds of golf. It is too early in this year to determine if this decrease - of golfers was a one-time anomaly or will continue to be the trend. The Board and Council took a ma~or step in 1999 when it approved the purchase of Angel Pines Country Club. This provided the Department with an opportuniry to provide a"whole" golfmg expenence, elimmated public confusion over ownersh~p and responsibility of the facilihes and provided for consistent management and maintenance of the faciliries. Staff beheves that m order to grovide a qualiry golfmg expenence for the pubhc, the facihty needs to be re-developed pnmarily as a golf-oriented facility. Some of the management issues that existed with the former owners of Angel Puies Country Club were based on their need to maximize revenues by being aggressrve m their scheduling and marketmg of facilities like the swimming pool and banquet facilihes duruig pnme hmes coincidmg wrth pnme time golf use. This created issues surrounding the lack of available parkmg to handle these multiple uses. While it would be preferable if a majority of users to this site would either carpool to the facility, or use public transportarion, the facts seem to mdicate that the public attendmg formal banquet and catenng functions and golfers bnngmg clubs and pull carts to play golf do not use alternate modes of transportation. Thus, the greatest factor m detemuning the future of the facility relates to the amount of parkmg space and traffic circularion available to support the pnmary uses. The tight design of the golf course does not allow major expansion of the parkmg area ~ .,...' Based on the economics of the three options, and the need to preserve the golf course as the ~. pnmary facility at this site, staff recommends the Board consider the followmg decisions: ~ 1. The minimum improvements consistmg of the modifications to the entrance area and parking lot, new signage and h~gher fencing along the dnving range should be funded and unplemented as soon as possible. T'here is cunently about $1 0 aullion allocated in the Capital Improvement Budget for golf unprovements. In 2001, we anricipate spending $70,000 to fund existing pro~ects ouuide the scope of the renovation pro~ect Staff has not been spending the majority of the dollars collected m the golf expansion fund each year during the past couple of years m order to have suffic~ent dollars for renovahon of some kind. The Board allocated approximately $375,000 in 1998 for the expansion of the existing pro-shop that was deferred for potential renovation of Angel Pines facilities. Addihonal dollars have been borrowed from future golf expansion revenues in 2002 and 2003 to provide for the ability to complete some renovations now 2. The tennis courts should be unmediately removed and the area reclauned for outdoor space for golf toumament events and to mamtam views. Staff believes there are sufficient public and private tetuus courts available within a one-mile radms of the golf course. 3. The swimming pool should be phased out sooner rather than later. There appeazs to be no compellmg reason to extend the life of this swimmmg facility after the renovation of North Boulder Recrearion Center is completed. The swimmmg pool is m need of extensive ~ renovanon and deferred mazntenance. If the City were to assume the management and maintenance of the pool, we would be required to address ADA issues. The physical site cannot accommodate the use and any improvements to the swimming pool and locker rooms would only mcrease the attendance and further exacerbate the parking and traffic circulahon situation. 4. The area currently leased to Spice of Life includes event spaces of 6,360 n.s.f., kitchen of 2,475 n.s.f., and a pre-function lobby of 715 n.s.f The banquet area has the capacity to hold 270 people at one time. Staff believes there is a continumg need to provide for event during and banquet space for golfmg and civic groups, but the square footage size for event spaces and kitchen facilities does not need to be as large as currently eausts. A smaller event dining, golfing bar-grille facility will solve an unmet need for golfers while still providing oppornuuties for most of the small civic and/or pnvate organizations that uhlize the ex~stmg banquet facihty. Keeping a banquet space m future re-development will also provide for revenues and uhlization of the facility durmg evenuigs or wmter months when the golf course would be closed or amount of play would be less. 5. The current pro shop and golf operations center should not be separated from food and beverage and banquet operarions. The current division of functions is based on the historical division of land ownership Smce the Ciry now owns the enhre facihty, there is no need to provide for these functions m separate buildings. Staff believes there are potential sales and merchandising opportunities with all functions provided in one buildmg ~ 9 and further efficiencies havmg all funcnons under one roof Staff believes that the master plan ophon which provides for the greatest economic opportumties, provides for more immediate dining faciliaes for the golfing public and preserves space for civic orgamzations, solves parkuig and circulation issues and provides for an expanded driving range and practice facilities is Ophon 2 Ophon 2 provides for a better physical location of the future clubhouse facility, enhances views of the Flatirons and results in a more e~cient clubhouse when constructed. Option 2 actually decreases the number of parlung spaces due to less parking demand with smaller facilities. The issue still to be deterauned with this ophon is the development cost. While the other two ophons can be phased, it appears that this development probably can not be phased Some muumum improvements can be phased before the ma~or building development occurs, but the parking lot and west side driving range fencmg can not be done until the existing facilities are demolished. As was previously mentioned, the Capital Improvement Program for the golf course has approximately $1 million for improvements to the golf course. If the Board agrees with Opt~on 2, staff will do the followmg 1 Research and be prepared to come back to the board at a future date to provide u~formation for financing the development costs of this option. . "1 2. Meet with representat~ves of the Boulder Golf Associarion and other interested groups to develop a plan for uutiatmg the recommended mmunum improvements begmning in 2001. ~ ~ 3. Begm discussions with Spice of Life to negotiate a settlement to teraunate their operahng agreement or negonate a different deal. We annc~pate that future banquet functions in Ophon 2 would be competihvely bid and contracted to the pnvate sector ATTACHMENTS: A- Locahon of the pubhc and pnvate tenms courts. B- Executtve Summary of Master Plan mcludmg information regarding potential net mcome to the Ciry, warranted investment, estimated development costs for each option and phase. H Pubhc hearmg memo ro PRAB- redevelopment opnons for Angel Pmes 10 ~ ~-- - -- - RenselUl-'_WO ANGFL P[NES/FLATIRON GOLF COURSE , __ , _ , JA ]t l! Locarion of Tennis Courts: Two Courts -1t Flanrons Golf Course Two Courts At arapaAoe Ridge Four Courts At Burbank ~6ddle School Five Courts :1t East Boulder Recreanon Center City of Boutder Parks & Recreation Map & Facilities Guide - - - - - - -t=-- -, i - ~' __----~~~ `/ ~ ~ ..r~=_.~ ~.~. . ~ ; , ~. ~ ; q _ ~ ; , o ~a _ I ~ ~..o _' ~ _~ E~. ~'~~ ' ~ ~ f ' ; ~ 1 i ~ G~ - ~r--= ~ _ • ~ - 3 . ~ ~ ~~ i ~- . ~ ~ D O I ~ O,~ES ~ I \ ~ I i L aA I ~ I v ~~~~ ~ _~N~ ~A , ~ 7 ~ i JI O~^p16e - -' __ - sJ p ~ ~ ~ ~ o5T q~ .. = o I , .- s.t ~ss.,..._ z ~~ ~ 1 i I ~!~_~~ FI ~ ' ~+ . w ~ T ~ ~ ~ ~~~ / -, ~ asc ,~--»ar~- , ».- ~ _ i.~ i ~J ~ 19 ( ~L~ i ~.~... P.~.. a ~ ' ~- ~ ,~ •• "' j ~ ~~/ _.__ ,~ ; ~ ~ ,o ' - ti , ~~! ~e~ I n R ...r.~ rv~ / V~ _.ee.o~n lt A ~ ~ ~ ~ C~ ~9]6t 6 ~ ~~9 \~GQti `~~~ G~ ~ + ,~~ .~..b~- I ~ ~~ I~ + ( ~ / I F~~ ~~, ~ 1 i HI _ ; ~o~ 04~~1~ ~.-:~F I ~:; ~yi ~ ~ ~0 ~~ _,u ~' ~ ~/ ~~,G ~ ~.,.E - -' I ~\ - ~ ^~_~ ~ xscava. " ' `;\ ~ ~ _ ~ ~ , "°~~ ~~ ,1 I ~i~ n _~ _-~„ ~,~r~o ~ ° ~~ ~ _ \ ^ $~~~~o ~o~ti9yQ ~ ~ , 11 a p \ ~Cav1t'1~~, 1 I ..i~ 61 ^+ ' „_ `~ 11 City Courts Within One I , ~~ Mile Of Flatirons Golf Course ,; , ~ ~, 3_4~-_5r_e_ _ ;