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4 - Consideration of a purchase of approx. 179 acres from the Inter Vivos Trust of Mary E. Shanahan for $6,609,000 CITY OF BOULDER OPEN SPACE BOARD OF TRUSTEES AGENDA ITEM MEETING DATE: September 10, 2008 AGENDA TITLE: Consideration of the purchase of approximately 179 acres of land in fee and all mineral rights owned by Seller located at 1019 South Foothills Highway on the west side of Highway 93 together with 1 1/4 shares of the South Boulder and Bear Creek Ditch Company from the Inter Vivos Trust of Mary E. Shanahan for $6,609,000, for Open Space and Mountain Parks purposes. PRESENTERS: Open Space and Mountain Parks Michael D. Patton, Director Ann Goodhart, Division Manager, Real Estate Services EZECUTIVE SUMMARY: The property is located at 1019 South Foothills Highway (Highway 93) on the west side, just south of the Shanahan Ridge Subdivision at the entry into the city of Boulder. The entire property is approximately 179 acres and is improved with a residence and a number of older outbuildings. See Attachment C. This purchase would secure the fee interest in 179 acres of land, all associated mineral rights, the rights to develop two homes and 1 1/a share of South Boulder and Bear Creek Ditch Company and other adjudicated water rights for $6,609,000. The purchase price will be paid as $1,000,000 at closing and the remaining $5,609,000 payable in 20 annual payments of $459,670.30 through a Boulder Municipal Property Authority lease purchase agreement. In 1985 the city purchased a development rights agreement from Tim and Maiy Shanahan limiting the development of the property to two units and was also loosely structured as a conservation easement. One of the units is not restricted in size, location or number of buildings while the other unit is restricted in size and number of buildings and is limited to aone-acre building envelope. The city spent $1,900,000 for these development rights which included 1 1/z shares of the South Boulder and Bear Creek Ditch Company. The Shanahans also donated a 15-foot strip of land for a trail along the westerly boundary of their property. One of the Shanahan children lives at the ranch with his family and has chosen to manage the property since the deaths of his parents, while the other two children live out of state and wish to sell the property. AGENDA ITEM # 4 PAGE 1 The city has been able to structure a fee purchase agreement with the Shanahan family for $6,609,QOQ that would allow the one son to continue to live at the ranch and manage the property for as long as he and his wife ~~vould like, subject to a temporary conservation easement that would limit their rights during the life estate period. This life estate is basically limited to agricultural uses and purposes and provides only for the addition of a pole barn and a 500 square foot addition to the west side of the existing residence. Also included in the purchase is a small triangular parcel located on the east side of Highway 93 between Highway 93 and Marshall Road which is approximately 1/3 of an acre. Tim and Mary Shanahan are buried on the property and the Shanahan family will retain the cemetery site with access to the site. The cemetery and pole barn location are shown on Attachment D. BACKGROUND Development Rights Agreement in 1985 The Shanahan family has ranched the property for more than a century. It is one of Boulder County's largest remaining family ranches. The Shanahan family patriarch homesteaded the original ranch in 1863, and it has been in the family's ownership continuously since that time. Originally, the ranch covered substantially more acreage than the current holdings. Over the years, the family sold parts of the ranch, with some of the sold lands becoming the South Table Mesa and Shanahan Ridge residential neighborhoods that are now within the city and development rights to the city of Boulder for open space purposes. This property was designated as open space in the original acquisition plan in 1967. Prior to the city's contract in 1985, Tim Shanahan entered into an option agreement with El Dorado Country Club (EDCC) to sell a portion of his property for a golf course and housing development. EDCC also planned to include the Boulder Greens Venture property and Dover/Blacker family property totaling 318 additional acres and which are now owned by the city. The city was able to negotiate a contract with Tim Shanahan for the development rights on the portion of his property covered by the option agreement with EDCC and the remaining Shanahan Ranch which was not subject of the EDCC option agreement. If EDCC did not exercise its option (it had missed payments in the past), then the city was ready to close on the Shanahan property. The city had also obtained approval from city council to use its eminent domain powers in the event EDCC exercised its option. Additionally the city obtained authority to condemn the adjoining Boulder Greens Venture and Dover/Blacker properties. The sale of the Development Rights by Mr. Shanahan was instrumental in defeating the plans to develop the golf course community and opened the door to acquire all three properties totaling an additional 497 acres adjacent to the city limits. At that time, the Shanahan property was eligible for aNon-Urban Planned Unit Development which would have allowed a maximum of 2 units per 35 acres for a total of 11 units. The purposes for the acquisition of the development rights in 1985 were to preserve open space for the scenic enjoyment of the general public; preserve an existing farming and ranching area and use; protect the buffered area at the southern boundary of the developed area of the city; and protect the entrance into the city. The development rights AGENDA ITEM # 4 PAGE 2 agreement provided for an unrestricted building site at the farmstead and asize-restricted site for a house of 2544 square feet plus a garage, a 1444 square foot shed, and a 544 square foot detached garage. The Shanahans conveyed the mineral rights to the city but retained their oil and gas rights. Their retained fee property could be sold in two parcels and would be subject to the city's development rights agreement. It was the intent of the city to acquire as much of the property that it could, however, Mr. Shanahan only wished to sell development rights and continue to ranch the property. At that time, staff hoped the development rights agreement would provide an opportunity to acquire more property rights in the future and keep the remainder of the ranch intact so the agricultural heritage would continue to be preserved, thereby further protecting the southwestern scenic entryway into the city of Boulder. City and County Designations and Land Use The Shanahan Ranch is in Area III and is classified as "Rural Preservation" land with "Open Space" and "Natural Ecosystem Overlay" designations. The entire ranch is zoned "Agriculture" within Boulder County with a "Floodplain Overlay" covering the floodplain areas. The new South Boulder Creek Floodplain study confirms that the northeast and southeast corners of the parcel are within the 140-year floodplain and the area immediately proximate to the "Donut Lake" is within the Conveyance Hazard Zone. At least a small portion of the one-acre building envelope is affected by the 144-year floodplain. The vast majority of the property is outside of the 104-year floodplain. The Boulder County Comprehensive Plan shows a "wet prairie" designation within the Boulder IVlountain Park/'South Boulder Creek Environmental Conservation Area and the Boulder Valley Comprehensive Plan indicates mapped wetland areas on the property. The city and county have designated the land in the ranch's northeast corner as well as the South Boulder and Bear Creek Ditch corridor, as being "significant agricultural lands of local importance". The wetland areas provide food and shelter for many animals and are the basis for complex natural food chains. Agricultural lands of local importance are the county's most valued agricultural lands. The small ponds and irrigation ditches provide wildlife breeding and foraging habitats. STAFF RECOMMENDATION: Staff recommends that the Open Space Board of Trustees approve a motion recommending that the Boulder City Council approve the purchase of approximately 179 acres of land in fee and all mineral rights, including oil and gas owned by Seller, located at 1419 South Foothills Highway from the Inter Vivos Trust of Mary E. Shanahan for Open Space and Mountain Parks purposes. COMMUNITY SUSTAINABILITY ASSESSMENTS AND IMPACTS: • Environmental: The Open Space and Mountain Parks (OSMP) program is a significant community-shared program that is recognized worldwide as a leader in preservation of open space lands contributing to the environmental sustainability goal of the City Council. The acquisition of the remainder of this property meets AGENDA ITEM # 4 PAGE 3 several Charter goals and purposes for open space acquisition. This property is unique in that it further preserves the agricultural heritage of the community and further protects the scenic entry«~ay into the city. • Economic: This purchase is a component of the OSMP Acquisition and Management Plan, which contributes to council's economic vitality goals, because it provides the physical context for the diverse and vibrant economic system that sustains services for residents. This acquisition will support diversity in economics by supporting local agriculture. The land system and the quality of life it represents attract visitors and help businesses to recruit and retain quality employees. • Social: Because the Open Space land system is equally accessible to members of all economic classes, it helps support council's community sustainability goal because all residents "who live in Boulder can feel a part of and thrive in" this aspect of their community. Historical agriculture will be sustained as part of this acquisition in an area that has been designated in the Boulder ~jalley Comprehensive Plan (BVCP) as a Significant Agricultural Lands of Statewide Importance. OTHER IMPACTS: • Fiscal: The purchase price is $6,609,000 payable as follows: $1,000,000 down payment at the time of closing. The balance of $5,609,000 shall be paid by Boulder Municipal Property Authority (BMPA) executing a note and deed of trust in the principal amount of $5,609,000 with an interest rate of 5 1/a% per annum in 20 annual payments of $459,670.30 each. (See Attachment A, Cashflow spreadsheet.) The water rights acquired with this property are valued at $600,000. The value of the improvements is nominal. The value of the land equates to approximately $33,500.00 per acre. The per-acre land value takes into account the existing development restrictions. These values are consistent with other Open Space and private transactions in the area. • Staff time: Normal staff time as required that is associated with a property acquisition. PUBLIC FEEDBACK: This item is being heard at this public meeting, advertised in the Daily Camera on September 7, 2008. ANALYSIS: The purchase price for the land and remaining development rights is $6,000,000. This includes the Shanahans' remaining oil and gas rights. The negotiated purchase price is based on an appraisal obtained ley the city in 2007. The land price is $33,519.55 per acre which does take into account the existing development rights restrictions. These values are consistent with other Open Space and private transactions within the Acquisition and Management Plan areas. The purchase price for the 1 1/a shares of the South Boulder and Bear Creek Ditch company is $609,000. The valuation for these water rights represents a fair market AGENDA ITEM # 4 PAGE 4 valuation given that the South Boulder and Bear Creek Ditch has a high water yield and is one of the most senior ditches on South Boulder Creek. With an original appropriation of May 25, 1862 for 16.6 cubic feet per second, the South Boulder and Bear Creek Ditch is the number five priority on the stream, meaning that these shares reliability yield water even in very dry years. There are also three ponds on the property, two of which have adjudicated rights for domestic, stock watering, lawn and garden irrigation. The purchase price will also include a small 1/3 acre triangular piece of property located on the east side of Highway 93, between Highway 93 and Marshall Road. The Shanahans have some interest in this remainder parcel and have agreed to include it in the agreement. This purchase does not include oil and gas rights reserved in Section 16 by the Colorado State Land Board. (This Section 16 is distinct from the Section 16 southwest of Rocky Flats.) Staff is currently working with the Land Board to obtain anon-development lease on these mineral rights. This would not permanently protect against development of the oil and gas rights, but the city does have an Oil and Gas Policy that could hinder the extraction of the oil and gas if the city owns the fee. There is no lease with the Land Board on these rights at this time, which could indicate that they have nominal commercial value. Tim and Mary Shanahan are buried on the Shanahan Ranch and the family will retain an easement to use approximately 1/2 acre for family cemetery purposes and will have access to the cemetery. The family members who are eligible for burial here are the children of Tim and Mary, their spouses (the Shanahans); the Shanahans' children and their respective spouses; and the Shanahans' grandchildren and their spouses. The purchase will be subject to a reserved life estate to Lynn Shanahan and his wife, Sandy Shanahan for as long as they reside on the land. The life estate is limited to continuing the agricultural uses of the property and managing the property in its current manner. The Shanahans may remodel the interior of the residence and maintain the existing structures. They may add 544 square feet to the west side of the residence, and a 64 X 124 foot pole barn. There will be no public access to the property during the term of the life estate. There will also be a conservation easement that will secure the terms of the limited life estate which will provide for a baseline report and inspections by the city. The purchase price for eliminating the two home site rights with associated outbuildings seems very expensive, however, this is a very unique property being one of the largest family held ranches adjacent to the city limits of Boulder, and the superior physical features of the ponds and the irrigatable land and its scenic qualities. If these parcels were to be sold to individual private parties it would impact the agricultural viability of the property and certainly impact the scenic values at the southern entryway into the city. The acquisition of the Shanahan Ranch meets several of the Charter goals and purposes for open space preservation including: AGENDA ITEM # 4 PAGE 5 Preservation of agricultural uses and land suitable for agricultural production. Preservation of waxer resources in their natural or transition state, scenic areas or vistas, wildlife liabitats, or fragile ecosytems. Utilization of non-urban land for spatial definition of urban areas. Preservation of land for its aesthetic or passive recreational value and its contribution to the qualit~~ of life of the community. Submitted by: Michael D. Patton, Director Ann Goodhat-t, Division Manager, Real Estate Services ATTACHMENTS: A. Cash Flow Chart B. Vicinity Map. C. Location Map D. Pole Barn and Cemetery Location Map E. Photo Gallery AGENDA ITEM # 4 PAGE 6 Projected Open Space Cashflow 2008-2013 Shanahan 09!1012008 2007 2008 2009 2010 2011 2012 2013 PROJECTED SALES TAX GROWTH 1 Revised 2004-2009 FinanceProjections08127104: 3.61% 3.69% 3.69% 3.69% 3.69% 3.69% 3.69% 2 Actual 2004 Revenue and OSMP Projections thereafter 03!09!2005 2.44% 2.60% 2.48% 2.48% 3.69% 3.69% 3.fi9% 3 2006-2012 Sales Tax Forecast 0210812006 5.33% 4.12% 3.39% 3.42% 3.38% 3.38% 4 2007-2013 Sales Tax Forecast 0412012007 5.18% 3.89% 3.27% 3.20% 3.24% 3.20% 3.20% 5 BEGINNING FUND BALANCE $29,944,436 $'13,123,522 $9,888,422 $8,164,559 $7,671,379 $6,805,096 $9,527,866 SOURCES OF FUNDS 6 OS Sales Tax Revenue $21,757,790 $22 498,097 $23,234,578 $23,977,065 $24,754,227 $25,546,359 $26,364,884 7 OS Fund-InvestmentslLeaseslMisc. $1,602,105 $810,909 $810,909 $810,909 $810,909 $810,909 $810,909 8 Proceeds from RE sale (2nd ATB) $708,439 9 General Fund Transfer for Mountain Parks: $1,012,481 $1,057,324 $1,067,897 $1,078,576 $1,089,362 $1,100,256 $1,111,258 10 GeneralFund Appropriationfor Real Estate Services: $121,277 $129,715 $131,012 $132,322 $133,645 $134,982 $136,332 11 Debt Refunding $12,576,687 12 Lottery Fund Appropriationfor CIP Purposes: $365,332 $475,000 $475,000 $475,000 $475,000 $475,000 13 Unexpended Lottery Funds Carried Over from Previous Year $493,245 14 Grants $42,118 15 Total Annual Sources of Funds: $38,314,142 $24,861,377 $25,719,396 $26,473,872 $27,263,143 $28,067,506 $28,898,383 16 Total Sources of Funds Available: $68,258,578 $37,984,899 $35,607,818 $34,636,432 $34,934,522 $34,872,602 $36,426,249 USES OF FUNDS 17 Total Debt Service for Bonds&Notes:(pre-2008) $24,069,494 $10,949,852 $11,253,152 $11,237,115 $12,205,526 $9,326,'I11 $9,390,176 18 2008 Debt Commitments $564,245 $564,245 $564,245 $564,245 $564,245 19 Total Debt Service for Bonds & Notes: $24,069,494 $10,949,852 $11 ,817,398 $11,801,361 $12,769,772 $9,890,357 $9,954,422 20 Capital Available for Land Acquisitions & Preservation: $822,083 $3,400,000 $3,400,000 $3,400,000 $3,400,000 $3,400,000 $3,400,000 21 Property Acquisition - 2006 Bond $19,608,471 22 Unexpended Acquisition Funds Carried Over from Previous Year $1,651,931 $0 $0 $0 $0 $0 23 Capital Available for Land Acquisitions & Preservation: $20,430,554 $5,051,931 $3,400,000 $3,400,000 $3,400,000 $3,400,000 $3,400,000 24 Dagle property and water acquisition (anytime from 2008 to 2014} $525,000 25 Less Other 2007 Land AcquisitionlCommitments YTD $19,807,000 $0 $671,333 $671,333 $671,333 $0 $0 26 Less Other 2008 Land AcquisitionlCommitments YTD $2,540,000 27 Shanahan $1,000,000 28 Remaining Land Acquisition Capital Available: $623,554 $986,931 $2,728,667 $2,728,667 $2,728,667 $3,400,000 $3,400,000 29 Capital for Visitor Infrastructure: $236,312 $450,000 $450,000 $450,000 $450,000 $450,000 $450 000 30 Unexpended Visitor Infrastructure Funds Carried Over from Previous Year $223,358 31 Capital for Water Rights Acquisition: $1,200 $30,000 $200,000 $200,000 $200,000 $200,000 $200,000 32 Unexpended Water Rights Funds Carried Over from Previous Year $12,777 33 Capital for Mineral Rights Acquistion: $0 $100,000 $100,000 $100,000 $100,000 $100,000 $100,000 34 Unexpended Mineral Rights Funds Carried Over from Previous Year $106,500 35 Lottery Capital Appropriation Available for MP Restoration: $127,9'I3 $365.332 $475,000 $475,000 $475.000 $475,000 $475,000 36 Total CIP Expenditures: $20,795,979 $6,339,898 $4,625,000 $4,625,000 $4,625,000 $4,625,000 $4,625 000 37 Management Operating Expenditures - OSMP Program: $9,170,881 $9,900,564 $10,093,401 $9,631,922 $9,824,561 $9,917,950 $10,116,309 38 Grant Expenditure $159,302 39 Management Operating Expenditures - RE Services: $121.277 $129.715 $131.012 $132.322 $133.645 $134.982 $136.332 40 SubTotalManagementOperatingExpenditures: $9,451,460 $10030,279 $10,224,413 $9,764,244 $9,958,206 $10,052,932 $10,252641 41 Administrative Budget Transfer-Cost Allocation: $734,774 $732,690 $730,502 $728,205 $725,792 $723,260 $720,600 42 Administative Budget Transfers -Health Benefit Subsidy: $41.675 $43,758 $45.946 $48.243 $50.656 $53.188 $55.848 43 Total Manayeinent Operating Expenditures: $10,227,908 $10,806,727 $11 000,861 $10,540,692 $10,734,654 $10,829,380 $11,029,089 44 Total Uses of Funds: $55,093,382 $28,096,477 $27,443,259 $26,967,053 $28,129,426 $25,344,736 $25,606,510 45 ENDING FUND BALANCE: $13,165,197 $9,888,422 $8,164,559 $7,671,379 $6,805,096 $9,527,866 $12,817,738 46 Less Reserves: $6,365,000 $6,365,000 $6,365,000 $6,365,000 $6,365,000 $6,365,000 $6,365 000 47 Less Reserve for 27th Pay Period $28,400 $56,800 $85,200 $113,600 $142,000 $170,400 48 UNRESTRICTED FUND BALANCE AFTER RESERVES: $6,771,797 $3,466,622 $1,714,359 $1,192,779 $298,096 $2,992,466 $6,-052,738 952008 - 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'fir.}"k.,~-n " .K I',; ''ty~~4'' • 4 f -Kf'_, ~y;~ i r'J 1 ~ ~r . ..ti ,r' r ~J ~ ~ ( , r 1 - R 9,,yd~'~.~' a'a ~.:.:G ~ !/f..~~ 'L~ .~'i'iI_ ~ '1;~1~~` }r`,^ r 1 "~~1.. f -'Lr a ' •s.., h[ ~'f~ 1. :F r aj- ~ 1. [-~i/~ 1 ~ 7,"- ? '~R r~ k .rt ~ /T ! ! R+ i -~t i _M. a.,..i a~.b) r'a?: 0.'Z' • ~~Jr ~Y •h r' L~ r a4 _ _r Lw ,e~. f 7~TT~~~' 1~.,~~.,.e ~ 114' ry: West Area Looking Northeast Southeast to Marshall Mesa ~ i ~ L - _r ~,~,4 .,'7+~yw ~•tC} ~ 1',}.~ •,w ~^r li ~a ilk / r A ;lr~.`rl'~1f.11+y.rr v •-1_ ' ~}~~',yy, t~J.~! y I ~ n-. ~ ' ;V* • ~ i 1' j ~ h ~ µ 9~ ? h, for f[ ~ s ~y 1: ' s Al ~ ~'t4•yKy`yL' ~,,t r i. n _ ~t ' i.. ° ' r v~ a~y'Y". "glaL r . r v ~1? 4 i• .t }s:~.:-?'~~:,f.~: 'fy ai;J +'~tt.,^t~~.~7~wv~~° :r'~ .n:~;.• y' ,,f. West Property Line Looking South Looking West Along the South Property Line ~ _r ~ r'. .r ~ y , t ,y ` ~ ~rti.,w r~1 *±i . r~ ~d'QC y ~ ~ w < , r r t +t3 ..,yly~._ , . f ' ~ ~ ' F, , ~ ~ i ~ aj~ik,;. {yam y '-~7 ~ ~`~j .c,r.. 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