HomeMy WebLinkAbout2005-11-18 Airport Commission Packetj~ Kenai Municipal Air ort
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~ ___ Su lemental Plannin Assessment
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City Council/Air ort Commission Work Session -
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November 18, 2005;1 PM
Proposed Agenda
1. Meeting Agenda/Introductions - Tom Middendorf
2. Recap of November 17 Public Meeting - All
3. Implementation Plan
• Land Use -- Tom Middendorf
• Property Management - Steve Pavish
• Financial Plan - Steve Horton
• Strategic Plan - Tom Phillips
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(Note; The Implementation Plan directs City staff to move ahead with
implementation of the Supplemental Planning Assessment. It is our intent to
reach consensus or make changes to the Implementation Plan so that it can
be adopted at future Commission and Council meetings. We intend to work
our way down the list of Action Items and only discuss those items the
Council or Commission has questions about or wishes to discuss,)
(Note: The Implementation Plan is still under review by City staff and an
updated version may be brought to the 11/18 meeting,)
4. Financial Plan Review (if desired by attendees) - Steve Horton
(Note: With several new Council Members participating at this meeting, it
was suggested a brief review of the Financial Plan may be helpful.)
5. Recap and Next Steps - Tom Middendorf
Kenai Municipal Air ort Su lemental Plannin Assessment
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Phase 2 Report
Implementation Plan
Note: This is still under review by City staff and an updated version may be
brought to the 11/18 meeting.
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February, 06 Adopt an ordinance to establish the Airport Reserve B/Pa es 9-12
g
~ ~ ~ ~ ~
~
and prohibit sale of alrport lands within the City Attorney Figure 11
Reserve. * * C/Page 4
March, 06 Update the Airport Layout Plan to include: Airport Manager
B/Pages 2 - 3
• Larger terminal area apron Figur~ 1
~ Larger terminal area B/Pages 3- 5
Figure 12
• Relocated Building Restriction Line and B/Page 5
consolidated lease lots Figure 3
• Northeast Airpark B/Pages 5-6
. Figure 3
• Relocated gravel strip Alternative 2 B/Pages 6-9
Figure 5
• Widen the floatplane waterlane and extend it Ph 1 Report
to the north P 18-33/Fig 11
• Airport Reserve and Land Use Plan B/Pages 9-14
Figures 11,12
January, 06 Axnend the Capital Improvement Program to include Airport Manager Not in report.
recommendations from the Phases 1 and 2 reports. **
January, 06 Request FAA release of airport land outside the Airport Manager Not in re ort. .
p
.
A~ ort Reserve.
December - January Complete upgrades to the City's GIS for the City Planner Not in re ort.
p
ai ort. * *
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November, OS Terminate submittal of airport appraisals to the FAA Assistant City C/Page 5
for a roval. Mana e~
February, 06 - July Transition to a reconstituted Airport Commission City Manager C/Pages 16 -18
08 with more direct authority over the airport (see
attached Transition Plan).
February, 06 Adopt revised/updated airport regulations. ** Airport Manager Not in report.
Cit Attorney
~~,rch, 06 Obtain Borough exemption from Platting City Planner C/Pages 4-5
re uirements for Ai ort Reserve lands. City Mana er
I r~~r.ch, 06 Prepare a New Chapter of KMC inco oratin all
~ g Ai ort Mana er
~ g C/Pa e 14
g
ordinances relating to the airport and including the City Attorney
following**:
• Establishing new method of setting and
adjusting land rental rates based on airport- C/Pages 5- 7
wide appraisal conducted every 5 years
• Deleting the fixed 6 per cent capitalization ClPage 6
rate
• Settin new lease term uidelines C/Pages 7-10
• Enabling incentives to encourage private C/Pages 11-12
development of airport land D l/Pages 10-12
• Allowing the City to require lease applicants C/Page 14
to provide a business plan and evidence of
~nancial ability
~ Protecting the City from environmental C/Pages 14-15
liability
~ Modifying the rights of a mortgage and C/Page 15
sublessee under a lease
• Updating insurance requirements C/Page 15
October, 06 Adopt an "Airport" zoning classification to cover all City Planner C/Pages 12-13
Ai ort Reserve lands.
r~~~~, 06 U date the City's land lease form, ** Cit Attorne
Y C/Pa e 15
g
; 06 Prepare a summary of KMC provisions applicable to City Attorne
Y C/Pa e 16
g
ai ort tenants ("minimum standards"),
December, 06 Complete airport-wide appraisal and implement new Assistant City C/Pages 5-7
land rental rates. Manager
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Financial Management Structure and Policy
Revise the KMC to include:
March, 06 • Eliminate unnecessary restrictions on use City Attorney D 1/Pages 8- 9
airport revenues and land sale proceeds
July, 06 • Combine three existin ai ort funds into a
g ~ Finance Director D 1/Pa e 8
g
single Airport Ente rise Fund City Attorney D3/Page 41
March, 06 • Less restrictive investment policy for airport City Attorney D 1/Pages 10-12
cash balances
March, 06 Consider adopting policies to lease rather than sell City Manager Dl/Page 12
Airport land, and using a portion of Airport cash
balances to develop revenue-producing capital
investments.
Terminal Leases
Prior to expiration of Draft a new airline operating agreement and terminal City Attorney D2/Pages 4-5
current lease building lease to reflect formula based rates and other
common industry ractices
~ ~~ to expiration of Modify rental car concession agreements City Attorney D2/Pages 5-6
~nt agreement
'' ~~ ~r to expiration of Modify restaurant concession agreement City Attorne
Y D2/Pa e 6
g
~nt agreernent
rrior to expiration of Modify lounge lease City Attorney D2/Page 6
current lease
Prior to expiration of Modify travel agency concession agreement City Attorney D2/Page 7
current agreement
Prior to expiration of Modify advertising concession agreement City Attorney D2/Page 7- 8
current agreement
March 06 Modify public parking lot fees Airport Mana er D2/Page 9
Rates and Charges
July, 06 Establish direct and indirect cost centers within the Finance Director D3/Pages 41-42
Airport Enterprise Fund and implement cost
accounting allocation procedures
July, 06 Calculate formula based airline landing fees and Finance Director D3/Pa es 41-42
~
. ,
terminal rent to be ad~usted annually ,
Alrport Manager
March, 06 Increase landing fees b ordinance City Mana er D3/Pages 42-43
Prior to expiration of Negotiate airline operating agreement and terminal Finance Director D3/Pages 42-44
current lease building lease and implement formula-based rate Airport Manager
structure
March, 06 Revise the aviation activity report to include aircraft Airport Manager D3/Page 42
landed weight.
Financial Plan
~h, 06 Adopt the Financial Plan and acknowledge the City Manager D4/Page 16
necessity of improving Airport revenues to mitigate Airport Manager
the proj ected exhaustion of Airport cash balances in
the lon term future.
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January, 06 Ado t the Strategic Plan. Cit Council
Y A/Pa e 6
g
March, 06 Form working group within the Airport Commission Airport A/Page 7
to track achievement of the Strategic Plan's Goals Commission
and Qb'ectives. Set priorities.
May, 06 Report to the Airport Commission on an ongoing Ai ort Mana er
~ g
basis with list of resources and level of efforts needed
to satisfy the Strategic Plan's Goals and Obj ectives.
March, 07 Assess attainment of the Strategic Plan's Goals and Airport
Qbj ectives. Reassess Goals and Obj ectives. Commission
'~'~ ~1~ask included in scope ot~ 5upplemental Planning Assessment.
KENAI MUNICIPALAIRPQRT
Supplemental Planning Assessment
Phase 2: Airport Land Use Plan
AIRPORT LEASING PROGRAM CHANGES
Proposed Transition Plan for Transferring Certain Authority &
Responsibility to a Reconstituted Airport Commission.
This plan presents a series of steps allowing for a gradual, orderly transferof authority and
responsibility for the Kenai Municipal Airport to a reconstituted Airport Commission by July 1,
2008. For purposes of training and familiarization to prepare members forthe assumption of
wider duties, the Commission may have to meet twice per month during the transition. The
dates given are intended only to be representative of the time periods involved. The actual
transition steps make take more or less time, primarily depending on how rapidly the
members of the new Commission are able become knowledgeable in the respective areas of
airpork expertise. Amendments to the KMC will be necessary throughout the transition as
items of authority are transferred to the Commission. The word "review" includes making
recommendations, but does not include final approval.
DATE~S) ACTION(S)
-.-.__.~
February 1, 2006 Council adopts by ordinance the Airport Reserve.
boundaries.
March 1, 20Q6 Amend Chapter 21.25 KMC to reconstitute the Airport
Commission membership and change all references to
"aeronautical lands" to "Airport Reserve". (Forthe time
being, the Commission would serve in an advisory capacity
only, so the duties in .010 would not change.)
April 15, 2006 Appoint / reappoint members to the Commission.
May 15, 2006 Commission briefed on recent and pending KMC
amendments related to the airport.
June 15, 2006 Commission briefed on the FY 2007 airport operating and
capital budgets.
July 1, 2006 Commission begins receiving a monthly report of airport
revenue and expenses. Commission begins reviewing all
~ budgeted airport expenditure requests that exceed the
City's purchase order limit before they are sent to the
-- Council. Commission alsa begins reviewing all applications
to lease land in the Airport Reserve priorto their
submission to the Council.
July 1-
October 1, 2006 Commission briefed on airport operations, terminal
operations, FAA grant assurances, airport security, leasing
procedures, and the status of all on-going capital
improvement projects.
October 1, 2006 Planning Commission adopts "Airport Zone" for Airport
Reserve lands; In addition to reviewing new lease
applications, the Airport Commission begins reviewing ~all
proposals for lease changes, assignments, and lessee
construction, as well as staff recommendations for lease
enforcement action or lease termination.
October 1, 2006 -
July 1, 2007 For training purposes, Commission is included in:
Each stage of the preparation and adoption of the FY 2008
airport operating and capital budgets;
Council decisions related to the airport; and
Airport regulation changes by the City Manager.
January 1, 2007 Commission begins reviewing appeals ta the Council of
Airport Managerdecisions regarding the airport.
Commission assumes responsibility for marketing the
airport,
July 1, 2001 Responsibility & authority for the following are moved to the
Commission:
Recommending to the City Manager airport regulation
changes, including changes in airport userfees,
Approval / rejection of budgeted airport expenditures that
exceed the City's purchase order limit;
Approval / rejection of all applications / proposals for
leases, lease changes, assignments, subleases, and
lessee construction related to land within the Airport
Reserve; and
Deciding appeals from Airport Managerdecisions.
During FY 2008 Commission assumes responsibility for;
Preparing and presenting to Council (through the City
Manager) the FY 2009 capital and operating budgets for
the airport;
Proposing to Council changes to the KMC, especially those
necessary to complete the transition by July 1, 2008.
January 1, 2008 Land use authority for the Airport Reserve transferred from
Planning Commission to Airport Commission.
March 1- July 1, 2008 Commission coordinates the final details of the transition.
July 1, 2008 Transition completed; Commission assumes responsibility
for all duties listed in the delegation of authority
recommendations.
\\
~ Recommended Delegation I Reor anization of Authorit & Res onsibilit or
, g y p y f the
- Airport.
City Council. Regarding the airport, the Council would retain final decision authorit for:
Y
- The airport operating budget and all non-budget expenditures;
- The airport capital improvement project ~CIP) budget;
- Airport Master Plans and land use plans;
- Airport-related changes to the KMC;
- Land rental rate policy (Rent adjustment methodology);
- Appeals of Airport Commission decisions; and
- The repeal of airport regulations.
- Approval of contracts for construction and procurement.
~ . , . . . .
; Reconstituted Airport Commiss on. The commission would change from an advisory
group to a deliberative body with decision-making responsibilities. To avoid conflict of
interest problems, this change would necessitate having a membership with wider community
representation than is required by the current KMC. We recommend a commission divided
between direct airport users and non-direct users, as follows:
- One commercial aviation service provider at the airport;
- One aviation lessee of land orterminal space at the airport;
- One non-aviation lessee of land orterminal space;
- Three at-large members representing the business and professional community,
but having no direct financial interest in
- an aircraft, otherthan one used exclusivelyfor non-commercial purposes,
- a business that operates on the airport; or
- a land orterminal space lease or sublease at the airport.
, - One member of the City Council, as a voting member of the commission.
The Council would appoint Commission members. Due the anticipated length of the
transition period required for the reconstituted commission to assume it's full duties and the
need for long-term continuity in airport policies, we recommend the terms for airport
commission members be at least four years, with staggered term expiration dates.
Recommended delegations of authority to a Reconstituted Airport Commission are as follows
(Note: All Commission decisions would be subject to appeal to the Council):
Timing within
Transition Plan
Dele ation
In FY2008 - Recommending the airport-operating budget to the City Manager;
In FY2008 - Recommending the airport CIP budget to the City Manager;
07/01/07 - Approval of all expenditures that exceed the City's purchase order limit
and are within the scope of budgets approved by the Cauncil;
Existing - Preparing and updating airport master plans and land use plans subject
to approval by the Council (as provided in the existing KMC at 21.25.010
(a});
In FY2008 - Making recommendations to the Council for changes to
airport-related sections of the KMC.
07I01 /08 - Recommending airport regulations changes to City Manager for
adoption, subject to Council approval (as in KMC 21.05.030);
07/01 /08 - General policy oversight of airport operations, terminal operations, and
land use;
01 /01 /07 - Responsibility for promoting and marketing the airport;
~7101/07 - Responsibility for all decisions related to leasing land within the
Airport Reserve, including approval / rejection of lease applications,
lease amendments, lease assignments, subleases, and lessee
construction proposals; and decisions related to lease terminations;
07101/08 - Adopting land rental rates using methods established by the Council;
07/01/08 - Recommending changes in airport user fees for adoption by City
Manager (subject to Council approval under KMC 21.050.030~;
~ 07/01 /07 - Hearing appeals of Airport Manager decisions; and
071011O1 - Make all land use decisions within the Airport Reserve.*
*(Note: This would require a transfer of land use authority from the Planning
Commission, but arrangements could be made forthe Airport Commission to
receive advice from the City's Planning & Zoning administrative personnel.)
Airport Manaqer. Recommended new delegations to the Airport Manager include:
- Designated point of contact for all land lease applications, lease amendments,
lease assignments, subleases, and lessee construction proposals; *
- Primary responsibility for negotiating the terms of land leases and lease
amendments with applicants (with assistance from the City Manager and City
Attorney); *
- Responsibility for lease premises inspections and lease enforcement; *
*NOTE: This does not necessarily mean the airport managerorthe manager's staff
would write the actual lease documents or lease enforcement letters. Some or all of
those duties could remain with the Assistant to the City Manager. How~ver, the airport
managerwould, underthe general direction of the Airport Commission, provide
direction for the actions described.
This delegation of authori~y and responsibility represents a major departure from the way the
City and airport now function. It certainly cannot be accomplished overnight, We anticipate
that the transition to a fully functioning, reconstituted Airport Commission will require a little
over two years. Th~ attached suggested transition plan provides for the delegation to be
completed by July 1, 2008.
Suggested by: City Council
CITY OF KENAI
RESOLUTION N0, 2005-*
A RESOLUTION OF THE COUNCIL OF THE CITY OF KENAI, ALASKA,
WHEREAS, the City of Kenai has requested an evaluation of the land use, property
management, financial management and strategic direction of the Kenai Airport; and,
WHEREAS, the Federal Aviation Administration has asked for and endorsed this
evaluation and has assisted with its funding; and,
WHEREAS, a DOWL Engineers team was selected to complete this evaluation and has
recommended a Supplemental Planning Assessment; and,
WHEREAS, the Supplemental Planning Assessment was completed ovez the past year
with involvement of the Airport Commission, City Council members, and the public;
and,
WHEREAS an Implementation Plan has been prepared that sets an implementation
schedule for the recommendations of the Supplemental Planning Assessment; and
WHEREAS, the City Council and Airport Commission reviewed the draft Supplemental
Planning Assessment Phase 2 report and Implementation Plan on November 18.
NOW, THEREFORE, BE IT RESOLVED BY THE COUNCIL OF THE CITY OF KENAI,
ALASKA, that the Kenai Municipal Airport Supplemental Planning Assessment Phase 2
Report and the Implementation Plan are hereby approved for implementation by the
City of Kenai.
PASSED BY THE COUNCIL OF THE CITY OF KENAI, ALASKA, this * day of *, 2005.
PAT PORTER, MAYOR
ATTEST;
Caxol L. Freas, City Clerk
Kenai Munici al Air art Su lemental Plannin Assessm
p p p~ g ent
Phase 2 Re ort
p
Implementation Plan
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1 Quarter 06
a
dopt an ordinance to establish the Ai ort Reserve
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B/Pages 9-12
an d pro hi bit sa le o f airport lan ds within the Reser~e. City Attorney Fi re 11
~
* * C/Pa e 4
1 S Quarter 06 Update the Airport Layout Plan to include: Ai art Mana er
~ g
BlPages 2 - 3
~ Larger terminal area apron Figure 1
• Larger terminal area B/Pages 3- 5
Fi re 12
• Relocated Building Res~riction Line and B/Page 5
consolidated lease lots Figure 2
• Northeast Airpark B/Pa es 5-6
g
Fi re 3
• Relocated gravel strip Alternative 2 B/Pages 6-9
Fi re 5
• Widen the floatplane water lane and extend it Ph 1 Report
to the north P 18-33/Fig 11
~ • Airport Reserve and Land Use Plan B/Pa es 9-14
g
1 st Quarter 06
Amend the Capital Im rovement Pro am to include
p gr'
Ai ort
rp Manager Fi res 11,12
'
Not in report.
recommendations from the Phases 1 and 2 re orts. *~
1 St Quarter 06 Request FAA release of ai ort land outside the
~
' Ci M
ty anager '
Not in report.
A
ort Reserve.
1 S Quarter 06 Complete upgrades to the City's GIS for the
. Ci Planner
~y No i
t n report.
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Terminate submittal of a~ rport appraisals to the FAA Assistant to Ci
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C/Pa e 5
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for a roval. Mana er
St
n
1
Quarter 06 - 2 Transition to a reconstituted Ai ort Commission
~ Cit Mana er
y g -
C/Pages 16 18
Quarter 08 with more direct authority over the airport (see
attached Transition Plan}.
1 S uarter 06 Ado t revisedlu dated ai ort re lations. ~~ Ci Attorne Not in r
e ort.
S
1 Quarter ~6 Obtain Borough exemption frorn Platting City Attorne
Y C/Pa es 4-5
g
re uirements for Ai ort Reserve lands.
*~ Task included in scope of Supplemental Planning Assessment. Draft
language/recommendations will be provided by the Consultants for City review and
,
a option.
r
1 " Quarter 06
4"' Quarter 06
? °° Quarter ~6
~~~uarter 06
4`n Quarter 06
Prepare a New Chapter of KMC incorporating all
ordinances relating to the airport and including the
following* ~ :
• Establishing new method of setting and
adjusting land rental rates based on airport-
wide a raisal conducted eve S ears
• Deleting the fixed 6 per cent capitalization
rate
_• Setting new Iease term guidelines
• Enabling incentives to encourage private
_ development of airport land
~ Allowing the City to require lease applicants
to provide a business plan and evidence of
financial ability
• Protecting the City from environmental
liability
,.
• Modifying the rights of a mortgage and sub
lessee under a lease
• Updating insurance requirements
Adopt an "Airport" zoning classif cation to cover all
Ai ort Reserve la.nds.
U date the Cit 's land lease form. *~
Y
Prepare a summary of KMC provisions applicable to
ai ort tenants ("minimum standards"). * ~
Complete airport-wide appraisal and implement new
land rental rates with assistance of consultants.
City Attorney
Cit~ Planner
Ci Attorne
City Attorney
C/Page 14
C/Pages 5 - 7
C/Page 6
ClPages 7-10
C/Pages 11-12
D 1 lPages 10-12
C/Page 14
ClPages 14-15
ClPage 15
C/Page 15
C/Pages 12-13
C/Page 15
C/Page l b
ClPages 5-7
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D 1/Pages 8 - 9
D1/Page 8
D3/Page 41
D 1/Pages 10-12
D 1/Page 12
Financial Management Structure and Polic
Revise the KMC to include:
1 st Quarter 06 • Eliminate unnecessa restr~iction
ry s on use
airport revenues and land sale proceeds
3` Quarter 06 • Combine three existin ai ort funds into a
, , g ~
sin le Ai ort Ente rise Fund
1 St Quarter 06 • Less restrictive investmen ' '
t policy for airport
cash balances
1 St Quarter 06 Consider ado tin olicies to lease rather than sell
P gp
Airport land (outside of the Airport Reserve), and
using a portion of Airport cash balances to develop
revenue-producing capital investments.
ASS1Stallt t0 C1~
Finance Director
Finance Director
Finance Director
Airport Manager
Terminal Leases
Prior to expiration of Draft a new airline o eratin a eement and terminal '
p g~' Finance D2/Pages 4-5
current lease building lease to reflect formula based rates and other Director/Ai ort
. . , , ~
common industry practices with assistance of Manager
Consultants.
~ ~o expiration of Modif rental car concession a '
y greements Assistant to D2/Pages 5-6
current a eement ~
Ai ort Mana er
~* Task included in scope of Supplemental Planning Assessment. Draft
language/recommendations will be provided by the Consultants for Ci review and
, ~Y
adoption.
pri~r to expiration of Modify restaurant concession agreement Assistant to D
2/Page 6
;nt a eement Ai ort Mana er
j ~~or to expiration of Modify lounge lease Assistant to D2lPa e 6
g
current lease A' ort Mana er
Prior to expiration of Modify travel agency concession agreement Assistant to D2/Pa e 7
g
current a eement Ai ort Mana er
Prior to expiration of Modify advertising concession agreement Assistant to D2/Pa e-
g 7 8
current a eement Ai ort Mana er
1 S uarter 06 Modif ublic arkin lot fees Ai ort Mana r
e
D2/Pa e 9
Rates and Char es
3rd Quarter 06 Establish direct and indirect cost centers within the Finance D3/Pa es 4-
g 142
Airport Enterprise Fund and implernent cost Director/Ai ort
~
. . , ,
accounting allocation procedures with assistance of Manager
consultants.
3rd Quarter 06 Calculate formula-based airline landing fees and
, Finance D3/Pa es 4-
g 142
terminal rent to be adjusted annually with assistance Director/Airport
of consultants. Manager
1 st Quarter 06 Increase landin fees b ordinance Ai ort Mana er D3/Pa es 2-
4 43
Prior to expiration of Negotiate airline operating agreement and terminal Finance D3lPa -
ges 42 44
current lease building lease and implement formula-based rate Director/Ai ort
~
. ,
structure with assistance of consultants. Mana er
~uarter 06 Revise the aviation activity report to include aircraft
, Ai ort Mana er
~ g D3/Pa e 4
g 2
landed we~ght.
Financial Plan
1 st Quarter 06 Adopt the Financial Plan and acknowledge the Ci Council
~Y D4lPa e
g 16
necessity of improving Airport revenues/costs to
mitigate the proj ected exhaustion of Airport cash
balances in the lon -term future.
1 St Quarter Ob Finalize evaluation of ai ort costs allocation and
~ ' '
Finance Director
ai ort revenues. ~ *
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1 st Quarter 06 Form working group within the Airport Commission Ai ort Mana er
~ g A/Pa e
g7
to track achievement of the Strategic Plan's Goals
and Ob'ectives. Set riorities.
2nd Quarter 06 Report to the Airport Commission on an on oin Ai ort Mana er
g g ~ g
basis with list of resources and level of efforts needed
to satisfy the Strate ic Plan's Goals and Ob'ectives.
1 st Quarter 07 Assess with the Airport Commission attainment of Ai ort Mana er
~ g
• , . .
the S~rateg~c Plan s Goals and Ob~ectives. Reassess
Goals and Ob'ectives.
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Re ort to Cit Council status ntation Ci M
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~ Plan.
*~ Task included in scope of Supplemental Planning Assessment. Draft
language/recommendations will be provided by the Consultants for Ci review and
. ~Y
adoption.
Recommended Delegation 1 Reorganizafiion of Authorit & Res onsibilit for the
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Airport.
Gity Council. Regarding the airport, the Council would retain final decision a
uthority
for:
- The airport operating budget and all non-budget expenditures;
- The airport capital improvement project (CIP) budget;
- Airport Master Plans and land use plans;
- Airport-re{ated changes to the KMC;
- Land rental rate policy (Rent adjustment methodolo •
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- Appeals of Airport Commission decisions; and
- The repeal of airport regulations.
Reconstituted Airport Commission. The commission would chan e from an
: . . .. , 9
advisory group to a deliberative body with decision-making responsibilities. To avoid
) conflict of interest problems, this chan e would necessitate havin a m ''
, 9 g embersh~p with
wider community representat~on than is required by the current KMC. We recommend a
commission evenly divided between direct airport users and non-direct users, as
follows:
- One commercial aviation service provider at the airport;
- One aviation lessee of land orterminal space at the air ort;
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- One non-aviation lessee of land or terminal space;
- Three at-large members representing the business and professional
community, but having no direct financial interesfi in
- an aircraft, otherthan one used exclusively for non-commercial ur oses
p p ,
- a business that operates on the airport; or
- a land orterminal space lease orsublease atthe airport.
~ - ~ne member of the City Council as a voting member.
Commission members would be appointed by the Council and serve at the Council's
- pleasure. I understand from speaking to the Juneau International Airport Business
Managerthatthe Juneau Airport Board members are not required to submitto complete
financial disclosure, The City Attorney should check state law to confirm that this would
be the case for the reconstituted ENA Airport Commission. Regardless, we recommend
the City require the at-large members of a reconstituted Airport Commission to sign an
affidavit affirming that they have none of the financial interests listed above.
Recommended delegations to a Reconstituted Airport Commission are as follows (Note:
All Commission decisions would be subject to appeal to the Council): •
. .
.
Timing within
Transition Plan
Dele ation
In FY2008 - Recommending the airport-operating budget to the City Manager;
In FY2008 - Recommending the airport CIP budget to the City Manager;
07/01/07 - Approval of all expenditures that exceed the City's purchase order ~'~y'
~r
.
and are within the scope of bud ets a roved b the Council~ ~~ ' ~~~
9 pp Y ~
~ -
Existing - Preparing and updating airport master plans and land use plans
subject to approval by the Council (as provided in the existing KMC
at 21.25.010 ~a));
In FY2008 - Making recommendations to the Council for changes to airport-
related sections of the KMC.
07/01I08 - Recommending airport regulations changes to City Managerfor
adoption, subject to Council approval (as in KMC 21.05.030);
07/01108 - Genera! policy oversight of airport operations, terminal operations,
and land use;
01 /01/07 - Promoting and marketing the airport;
07/01/07 - Responsibility for all decisions related to leasing land within the
Airport Reserve, including approval 1 rejection of lease applications,
~
lease amendments, lease assignments, subleases, and lessee
,
,
-- construction proposals; and decisions related to lease terminations;
(All subject to appeal to Council.)
07/01I08 - Adopting land rental rates using methods established by the
Council;
07/01/08 - Recommending changes in airport user fees for adoption by City
Manager (subject to Council approval under KMC 21.054.030);
01 /01/08 - General supervision of Airport Manager; final approval of the hiring
orfiring of theAirport Manager;
07/01/07 - Hearing appeals of Airport Manager decisions; and
07/01/Ol - Make all land use decisions within the Airport Reserve.
(Note: This would require a transfer of land use authority from the
~ Planning Commission, but arran ements could be made for the Air o
g p rt
Gommission to receive advice from the City's Planning & Zoning
administrative personnel.)
Airport Manaqer. Recommended new delegations to the Airpor~ Manager include:
- Designated point of contact for all land lease applications, lease
amendments, lease assignments, subleases, and lessee construction
proposals; *
- Primary responsibility for negotiating the terms of land leases and lease
amendments with applicants ~with assistance from the City Manager and City
Attorney}; *
- Responsibility for lease premises inspections and lease enforcement; *
*NOTE: This does not necessarily mean the airport manager or the manager's
' staffwould write the actual lease documents or lease enforcement letters. Some
~
~
~
or a11 of those duties could remain with the Assistant to the City Manager.
~ ~.
~ However, the airport manager wouid, under the eneral direction of the A'
9 irport
-- Commission, provide direction for the actions described.
This delegation of authority and responsibility represents a major departure from the
way the City and airport now function. It certainly cannot be accomplished overni ht, so
~ . . , g
I ve attached a suggested transition plan that provides for the delegation to be
completed by July 1, 2008.
L.~
~~ ~ Kenai Municipal Airport Supplemental Planning Assessment
Phase 2 Report October 2005
,
EXECUTIVE SUMMARY
1 ~0 SUPPLEMENTAL PLANNING ASSESSMENT PURPOSE
The City of Kenai selected the DOVUL Engineers team to cornplete a Su lemental Plannin
pp g
Assessment for the Kenai Municipal Airport. The purpose of Phase 2 of the Assessment was
to establish an overall vision and direction for the airport while addressing land use, ro ert
p p Y
management, financial, and organizational issues. The project has built u on and
p
supplemented the existing 1997 airport master plan. Phase I of the Supplemental Plannin
g
Assessment, documented in a separate report, also addressed some of the h sical lar~nin
pY p g
issues assoc~ated with the paved runway, parallel taxiway and floatplane base.
Some of the key questions the Phase 2 study has addressed includes:
Strategic Plan
1. UVhat are the primary mission, vision, goals, and objectives of the Kenai Munici al
` p
~ .
Alrport? ~
2. What strategies can the airport take to achieve them in the short term, intermediate term
~
and long-term?
Land Use
1. What airport lands should be reserved for aviation purposes? What airport lands can be
used for non-airport purposes?
2. What kinds of land uses should be planned for the airport reserve lands? How much land
is needed for each use?
3. How can some of the lands outside the airport reserve be developed for the benefit of the
community (Millenium Square, Lawton Acres, Baron Park ?
}
Executive Summary - Page -1
i
. Kenai Municipal Airport Supplemental Planning Assessment ~
Phase 2 Report October 2005
Property Management and Leasing Policy
l. Considering the property management ro rams used b the o erators ' '
P g y p of other alrports In
Kenai's class, how m~ght the City of Kenai's land leasing procedures be im roved and
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streamlined?
2. In what ways should the Kenai Municipal Code be revised and u dated to im rove the
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City's airport property management program?
3. In what ways should the City's land lease form be updated and im roved to better serve
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the City's interests?
4. Shauld the City adopt minimum standards for aviation service providers at the ai ort?
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Organizational Structure
l. U~hat organizational structures do the most effective and efficient ai orts in Kenai's
~
class use?
2. 1~Vhat~ features of those organizational structures might beneficiall be a lied to the
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Kenai Municipal Airport?
Financial Plan
l. What financial accounting and reporting structure would be most a ro riate to su ort
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the financial planning and monitoring needs of the Airport?
2. What limitations do FAA regulations and the Kenai Municipal Code KMC im ose on
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the use of the Airport's cash reserves and investment income that have ac
cumulated to a
substantial balance over the past 25 years?
3. Are the existing limitations imposed by the KMC on the investment of Ai ort cash
~
reserves appropriate and the most beneficial for the Airport's current financial condition?
What investment policies would be more beneficial for the future financial con i i
dtonof
the Airport?
Executive Summary - Page - 2
~ Kenai Municipa] Airport Supplemental Planning Assessment
Phase 2 Report . October 2005
4. How can the Airport's practices for leasing terminal buildin s ace and related areas be
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___ changed to match common industry practices and im rove its financial erformance?
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5. ~ow can the Airport's methods for determining overall rates, fees and rental amounts be
changed to match common ~ndustry practices and improve its financial performance?
6. What long-term financial plan would provide a balanced approach to match the Ai ort's
~
available revenues and funding sources with its operating expense and ca ital
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expenditure requirements?
7. Given the results of the long-term financial plar~ning analysis, what are the Ai ort's
~
prospects for its future financial health and stability? What can the Ai ort do to
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maintain its financial self sufficiency in the long-term future?
Fconomic Impacts
l. What are the economic impacts of the Kenai Munlcipal Airport on the community and
regi on?
The DOWL team met with Airport Commission and Council Members and the public in a
series of ineetings from March - November 2006 to review and discuss the answers to the
above guestions and provlde direction to the team. This Phase 2 report compiles our findin s
g
in an Executive Summary and in the attaehed Appendices for each subject area. The
Appendices are organized as follows:
Appendices to Phase 2 Report
Appendix A: Airport Strategic Plan
Appendix B: Airport Land Use Planrling
Appendix C: Airport Property Management and Leasing and Organizational Structure
Appendix D: Financial Planning Analysis
~ Appendix E: Economic Impact Study and Brochure
Executive Summary - Page - 3
~ Kenai Municipal Airporl Supplemental Planning Assessment
Phase 2 Report - October 2005
, 2.0 PROJECT TEAM
The DOWL tearn is comprised of aviation specialists with expertise to address the issues and
questions noted above. The team members and their roles include:
NAME COMPANY PROJECT R~LE
Tom Middendorf DOWL En ineers
g project Manager, Facility Planning, Land Use
Plannin
Tim Potter
Kevin Doniere .
DO~VL Englneers
Sub-area plans and GIS
Tom Philli s
p Keiser Phillips
Associates Forecastin and Strate ic ~
g g Planning
Steve Pavish Northem Horizons Property Management, Leasing Policy, Qrganization
Structure
Steve Horton Leibowitz and Horton Financial Plannin Anal sis
Linda Snow Southeast Strate ies Economic Im act
Bill Nelson ~illiam Nelson and Facili Plannin an
~' g d Costs
Associates
3.0 STRA-TEGIC PLANNING
A strategic plan is a method of determining the most effective use of an airport's investment
~
,~ and capital opportunities. It is a document that sha es all other lans: facilities develo ment
P p P ~
personnel, financial and so on. Simply put, strategic planning determines where an
organization is going over long-term, how it's going to get there and how it will know if it got
there or not.
The purpose of preparing a strategic plan for Kenai Municipal Airport is to:
1. Clearly defne the purpose of Kenai Municipal Airport and to establish realistic goals and
objectives consistent with that mission in a defined time frame within the airport's
capacity for implementation.
2. Communicate those goals and objectives to the community.
3. Develop a sense of ownership of the plan.
4. Ensure the most effective use is made of the airport's resources by focusing the resources
on the key priorities.
Executive Summary - Page - 4
. Kenai Municipal Airport Supplemental Planning Assessment
Phase 2 Report October 2005
5. Provide a base from which progress can be measured and establish a mechanism for
\
~ informed chan w
_ ge hen needed.
6. Building a consensus about the direction the airport is taking.
In summary, a strategic plan provides for clearer focus for the Kenai Munici al Ai ort and
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provides a connection between the Kenai Airport staff, the Airport Commission, Cit staff
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and the City Council.
3.1 Mission Statement
At its mast basic, the mission statement describes the overall purpose of Kenai Munici al
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Airport. Its purpose is to clearly separate the mission of the Kenai Munici al Ai ort from
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other airports in the KPB.
The Mission Statement for Kenai Municipal Airport is:
The primary mission of Kenai Municipal Airport is to be the commercial air
, .
~ . .
transportat~on gateway to the Kena~ Pentnsula Borough and VVest Cook Inlet.
3.2 Vision Statement
A Vision Statement is a description of a preferred future. It draws on the beliefs, mission
~
and environment of an organization. Ideally, the vislon statement identifies the direction and
purpose for Kenai Munlcipal Airport and alerts the community and stakeholders to needed
change.
The Vision of Kenai Municipal Airport is:
A strong air transportation center with passenger and cargo air carriers serving
multiple destinations, general aviation facilities and services supported by a well
managed Iandside development program that will generate long-term revenue streams
and protect airport environs from encroachrnent of incompatible land uses.
Executive Summary - Page - 5
. Kenai Municipal Airport Supplementai Plannin Assessment
g
Phase 2 Report October 2005
- 3.3 Goals, Objectives and Strate ies
g
~
Specific actions derived from the mission and vision statements are determined throu h
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identifying goals, objectives, and strategies. The followin are the oals identified in the
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Strategic Plan. The objectives and strategies as well as additional information about the
Strategic Plan can be found in Appendix A- Airport Strategic Plan.
GOAL: Retain and expand scheduled air passenger activity at Kenai Municipa)
Airport.
GOAL: Encourage and expand on air taxi and business general aviation services at
Kenai Municipal Airport.
GOAL: Establish Kenai Municipal Airport as a major air cargo center for the
Kenai Peninsula Borough and West Cook Inlet.
GOAL: Maintain the financial viability of the Airport.
~ GUAL: Maintain and encourage a compatible environment for airport growth and
~
~ development.
~ GOAL: Provide airport facilities and services that ma~mize~ safety, efficiency,
convenience, and opportunity for use.
GQAL: Make the Airport an aesthetically pleasing gateway to the Kenai Peninsula.
3.4 Land Use Planning
In 1963 the federal government conveyed land to the City of Kenai for the Kenai Munici al
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Airport. The land was to be devoted to uses consistent with public ai ort u oses. Much
~ p~
of the core area of Kenai has developed on this property, primarily throu h the sale of the
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property for private and public development. VVhile this community develo ment has
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enabled Kenai to grow and has helped finance airport operations and develo ment, the Cit
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of Kenai, the FAA, prior airport master plans, and communit or anizations have e
y g xpressed
concerns that if the rate of community use of airport lands continues, eventuall the ai ort
Y ~
~
~
Executive Summary - Page - 6
• Kenai Municipal Airport Supplemental Planning Assessment
Phase 2 Report Uctober 2005
would lose its ability to grow and provide transportation services and economic develo ment
P
- opportunities to the City and region.
The detailed land use planning recommendations can be found in Appendix B of this re ort.
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4.0 AVIATION FACILITY PLANNING ISSUES
Several facility planning changes are recommended to enable the short and lon -term rowth
g ~
of the airport. They are depicted in Figures 1- 6 of Appendix B. Facillt lannin
YP g
recommendations included:
~ Terminal Area Apron Deptb. Apron depth in front of the terminal area and to the north
past the control tower can be increased from the existing 135 to 185 feet deep to u to
P
390 feet. This would also provide space for a future apron edge taxilane and service
road. Expansion of the apron would provide the flexibility to meet FAA design standards
for up to C-130 sized aircraft. Construction could be phased as needed, robabl with
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expansion of the north end first, where larger aircraft are more likel to need it.
y
1
• Terminal Area Reserve. Space for the passenger terminal and associated arkin
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appears to be adequate today, but could be constrained in the future if passenger traffic
grows. Therefore property should be reserved from the existing terminal area all the wa
y
to Granite Point Street for long-term terminal expansion and terminal parking ex ansion.
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Interim use of this property for other uses is acceptable, if needed prior to its use for
terminal related purposes.
• Northeast Air Park. In the short term, existing undeveloped lease lots alon Willow
g
Street north of the passenger tenminal can be consolidated and developed. The Northeast
Alr Park should be developed in the long-term for aviation develo ment, first to the west
P
of Marathon Road and later, if needed, to the east of Marathon Road.
• Air Taxi/General Aviation Consolidation. The gravel strip and associated lease lots
and tie downs should be relocated next to the floatplane base. This will enable
development of the Northeast Airpark and support expansion of air taxi/charter
~ ~
> development that operates from both float and wheeled alrcraft.
Executive Summary - Page - 7
~ Kenai Municipal Airport Supplemental Planning Assessment :
Phase 2 Report 4ctober 2005
4.1 Airport Reserve
A primary purpose of this project is to define the land needed for long-term rowth and
~
development of the airport and airport land which is not needed for aviation u oses.
p ~P
Figure 11 of Appendix B shows the proposed airport reser.ve. It encom asses all of the
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existing properties developed for aviation purposes, land in the terminal area ro osed for
PP
long-term terminal related development, rental cars and overflow parking, as well as the
proposed Northeast Airpark and adjacent properties that could support that develo ment.
p
Properties within the reserve should not be sold but can be leased for aviation-related
purposes consistent with the airport land use plan. Areas outside the reserve ma be
Y
developed for uses unrelated to the airport, once the FAA approves an update to the ai ort
~
layout plan that incorporates this reserve. The City retains the flexibility to use some of the
lands within the reserve for non-airport purposes in the interim until the lands are needed for
aviation uses.
4.2 Airport Land Use Plan
Figure 12 of Appendix B shows the recommended land use plan. It establishes a lon ran e
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vision for Iand uses that should guide future lease, sale and use of ai ort lands at Kenai
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. Municipal Airport. In some instances, such as the relocation of generai aviation activit to
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the west side of the airport, it reflects a si ificant chan e in land use
gn g that will take many
years to implement. In other cases there may be interim uses that may be aliowed until the
long-term land use is required. The term of the lease for an interim use should be determined
based on when the land will be needed for the designated land uses in the land use lan based
p
on the airport master plan, airport capital improvement program, and sound ai ort lannin .
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Land use definitions associated with the Figure 12 land use drawing can also be found in
Appendix B.
4.3 Non-Aviation Sub-area Plans
Options for development of Baron Park, Lawton Acres, and Millenium S uare were re ared
9 Pp
~ and resented. Based on comments recerved v
; P , se eral addit~onal optlons were prepared for
Executive Summary - Page - 8
. Kenai Municipal Airport Supplemental Planning Assessment
Phase 2 Report October 2005
~ Millenium Sguare that conrlected the hotel and convention centers and reduced the amount of
' the central open space. All of the concepts can be found in Fi ures 13 - 23 of A endix B.
~ PP
5.0 PROPERTY MANAGEMENT AND LEASING POLICY
An in-depth comparative study was conducted of the property management programs used by
the City of Kena~ and the operators of 11 other airports, including six in Alaska, one in
Oregon, and four in Washington. As a result of that study, changes are recommended to
improve and streamline the City's airport property management and land leasing policies.
Detailed recommendations, as well as copies of the Raw Data Report and Preliminary
Conclusions from the comparatlve study, are ~ncluded in Appendix C.
5.1 Airport Property Management Improvements and Streamlining
Several improvements to the City's property management program are recommended:
~ Establish an Airport Reserve within which all City-owned land will be held in perpetuity
~ to provide for the future economic, leasing, and physical needs of the airport. The
reserve should be established by City ordinance in addition to being shown on the FAA-
approved Airport Layout Plan.
• Obtain an exemption for all land within the Airport Reserve from the Platting
requirements of the Kenai Peninsula Borough.
•~nd the practice of submitting airport land valuation appraisals to the FAA for approval.
• Adopt a new method of setting and adjusting land rental rates based on an airport-wide
appraisal conducted every five years.
• Adopt new guidelines for setting the length of land lease terms with higher lessee
investment requirements and a 35-year maximum.
• Adopt incentives to encourage the private development of airport land, including City
property tax waivers based on the lessee's investment in permanent improvements and
Executive Summary - Page - 9
• Kenai Municipal Airport Supplemental P)anning Assessment
Phase 2 Report October 2005
, airport-funded lease lot infrastructure development paid back by the ]essee through a rent
~
_ surcharge.
• Adopt a broad "Airport Zone" to replace all the conventional zoning classifications that
now apply to City-owned land within the Airpart Reserve.
5.2 Kenai Municipal Code Revisions
On the basis of the comparative study results and best airport industry practices, extensive
revisions to the Kenai Municipal Code (KMC) are recommended, including:
~ A new, separate chapter of the KMC under which all ordinances relating to Airport
Reserve lands and airport operations would be listed.
• A provision adopting the Airport Reserve by ordinance, reserving all City-owned land
therein from sale or transfer.
• The replacement of the existing rental rate setting method with an airport-wide appraisal
~
~~ system.
• The deletion of the fixed 6 percent capitalization rate used to calculate rental rates.
• The updated lease term guidelines. ~
• A provision to allow the City to reguire a land lease applicant to provide a~business plan
~ and evidence of financial ability to complete the proposed improvements, in addition to
the information now required. ~
• A provision to provide the City with protections from liability in the event of lessee-
caused environmental contamination.
• Updated provisions related to rights of a mortgagee and those of a sublessee.
~ Additional provisions necessary to support the updating of the City's land lease form.
~~ ~ Updated insurance requirements.
Executive Summary - Page -10
~ Kenai Municipal Airport Supplemental Planning Assessment
Phase 2 Report October 2005
• Any changes necessary to irnplement the reorganization recommendations presented in
- Section 6 of this executive summary.
• Any changes necessary to implement the land development incentives recommended in
Section 5.1 above.
5.3 Updated Lease Provisions
On the basis of the comparative study results and best airport industry practices, revisions to
the provisions of the City's land lease form are recommended, including:
• Provisions to require the lessee to perform the services or commercial functions that the
lessee proposed in his or her application.
• Provisions related to environmental contamination.
• Updated provisions relating to assignees, mortgagees, and sublessees.
) ~ ~ ~ .
Explicit llsting of the purposes for which the lessee Is authonzed to use the premises and
a provision prohibiting all other uses.
• Revised rent adjustment provision to streamline the process and better conform to the
recommended airport-wide land appraisal system. ~
~ A provision requiring the lessee to submit as-built drawings of all improvements within
60 days following their completion.
• Updated insurance requirements.
5.4 Minimum Standards for Aviation Service Providers
Typically, minimum standards express those requirements which an airport operator will
uniformly apply to all those who wish to operate an aviation service. They often include
insurance requirements, rent and fees, minimum investments in buildings or other
improvements, minimum hours of operat~on, etc. The adoption of minimum standards helps
l
~' the airport operator to better demonstrate compliance with the requirements of the grant
Executive Summary - Page -11
~ Kenai Municipal Airport Supplemental Planning Assessment ~
Phase 2 Report October 2005
assurances that come with AIP grant funding. When amended as recommended in Section
_ 5.2 above, the KMC will include most of the essential elements of minimum standards.
Therefore, for strict compliance purposes, it would not be necessary for the City to ado t
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separate minimum standards. However, ~t is recommended that the City publish a summar
y
of the KMC provisions applicable to aviation service providers / applicants as a convenience
to those parties.
6.0 ORGANIZATIONAL CHANGES
The results of the airport comparison study strongly indicated that the most effectivel and
Y
efficiently run airports o#' Kenai's class are operated by an independent airport governin
g
board, not directly connected to the loeal government. The study further indicated that these
governing boards delegated substantial authority to a professional airport manager who was
in charge of most, if not all, airport administrative and operating functions. At these hi hl
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successful airports, operating responsibility and authority are delegated to a person with
substantial airport expertise.
Generically speaking, the best run airports are characterized by an administrative
organization that aggregates authority, responsibility, and expertise in one lace either a
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specialty airport board or a professional airport manager).
Currently, airport-related authority and responsibility are scattered amon the Cit Council
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the City Manager's office, the Planning and Zoning Commission the Ai ort advisor
, ~ ~ y}
Comrnission, and the Airport Manager, while airport expertise resides with Airport Mana er
g
and, to some degree, the Airport Commission. This defusion of authority and responsibilit
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among positions with little or no airport expertise can, and has, resulted in actions / decisions
that are inconsistent with sound airport practices. Such actions have included selling ai ort
~
land in near proximity to the terminal building and allowing long-term, non-aviation use of
land with taxiway access.
This defusion of authority and responsibility probably did not have a major adverse im act in
p
the early days of the City's airport operations. But, both the community and the airport have
~ grown. For the airport to serve the future needs of the region, while com 1 in with
PY g
Executive Summary - Page -12
' Kenai Municipa] Airport Supplemental Planning Assessment
Phase 2 Report Qctober 2005
~ increasingly complex aviation regulations and striving to maintain financial self suffcienc
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-- the City needs to cons~der making significant organizational changes that will lace ai ort
P ~P
authority, responsibil~ty, and expertise together to the maximum extent possible. V~e
recommend the establishment of a reconstituted Airport Commission to function as the
governing board of the airport, together with an increased delegation of authority to the
Airport Manager. More detailed recommendations are presented in Appendix C. The
details of the transfer of authority and the transition to a fully functioning reconstituted
Airport Commission remain to be developed. Northern Horizon will continue workin with
g
the City on this matter as the project proceeds to com letion.
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7.0 FINANCIAL PLANNING ANALYSIS
The detailed analyses, findings and recommendations for the Financial Planning Anal sis
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Included in the Supplemental Planning Assessment Phase 2 project are provided in Ap endix
p
D to this report as follows:
1 Appendix D1 - Financial Management Structure and Policy Review
Appendix D2 - Terminal Lease Analysis
Appendix D3 - Rates and Charges Study
Appendix D4 - Financial Plan
An executive summary of the findings and recommendations are provided below.
7.1 Financial Management Structure and Policy Review - Appendix D1
.Limitations on the Use of Land Sale Proceeds - In the early 1980s, the City of Kenai
experienced an economic boom due to the discovery and development of oil in off shore
areas proximate to the borough. This started the overall growth of economic activity in the
City ~ that ]asted for several years. As a result, significant portions of land owned b the
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Airport were sold to private developers to promote economic development of the Cit . In
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1980, the City believed the FAA imposed a restriction that rohibited the ex enditure of land
P p
} .
sale proceeds for anything except cash-equivalent type investments.
Executive Summary - Page -13
Kenai Municipal Airport Supplemental Planning Assessment
Phase 2 Report October 2005
Through a review of FAA regulations, the U.S. government's original deed of conveyance to
-- the City in 1963 and discussions with FAA personnel in the Anchorage Airports District
Office (ADO), we have determined that the FAA has not ever required, and there are no FAA
regulations that currently require, that the proceeds from Airport land sales be restricted onl
Y
to cash-equivaient type investments. As with all Airport revenue from all sources, these
accumulated funds can be used for any valid airport purpose including operations and capital
investment on Airport property.
Limitations on the Use of Airport Revenue - In 1965, the City issued revenue bonds to
fnance the construction of commercial passenger terminal facilities. The debt covenants of
these revenue bonds reguired that all revenues derived from land sales, investment income
and all other sources be used only to pay debt service and operating expenses of the Ai ort
~
so long as the bonds remained outstanding. The debt covenants were codified by Cit
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ordinance when the bonds were issued. These bonds were retired by the City in 1987, but the
restrictive ordinance was never rescinded and currently remains.
~ We recommend that the
KMC be revised to el~minate the revenue use restnctions that were
originally imposed by the 1965 Revenue Bonds so that accumulated land sale roceeds
P ~
investment income and aIl other Airport revenue sources can be used for any ai ort u ose
~ P ~P
that complies with FAA regulations.
Airport Financial Accountin~ and Reportin Structure - Debt covenants of the revenue bonds
issued by the City in 1965 reguired the establishment of two separate special revenue funds
to account for Airport land not related to aviation and to account for the Airport's operations
including the airfield, terminal facilities and other aviation related activities. This fund
structure was cod~fied by City ordinance when the debt was issued. Over the next several
years through 1977, Airport fund structure changes and requirements were added to the KMC
wh~ch resulted in a three fund structure. This structure, which currently remains, includes a
terminal enterprise fund to account for terminal operations, a special revenue fund to account
for Airport operations not related to the terminal and a permanent fund to account for land
sale proceeds and the resulting investment income.
Executive Summary - Page -14
' Kenai Municipal Airport Supplemental Planning Assessment ~
Phase 2 Report October 2005
The Airport's current fund structure is not customar in the aviation industr is
Y Y~
-~ unnecessarily complicated and does not support financial planning and monitoring efforts
that would be beneficial for financial management of Airport activities. ~1Ve recommend that
the KMC be revised to combine all three Airport funds into one Airport Enterprise Fund.
Airport Financial Condition - The overall financial condition of Airport operations can be
assessed by combining the three accounting funds that are currently used for the last fve
years 2001 through 2005). In reviewing the results of this combination, the following trends
have been noted:
• Net operating revenues (excluding investment income) have presented a declining trend.
• 4perating expenses have presented a moderate growth rate and are statistically inline
with non-hub ~ndustry averages but are relatively high when the Airport's particular
circumstances are considered.
• Operating revenues have been substantially lower than non-hub industry averages.
}
• Investment income has presented a significant declining trend due to the decline of
interest rates.
• Excluding investment income, the Airport's financial operating results for the last several
years have been deficits of over $1 million annually.
The result of these trends is that the Airport is currentiy operating at significant annual
deficits which began in 2003. In 2001, totai net revenues (including investment income and
land sales) were $458,000. In 2003, these total net revenues declined to a$352,000 loss and
by 2005, were budgeted to result in a$935,000 loss. In past years, it is evident that the
Airport has relied on significant investment income from its cash balances to .overcome its
net operating losses. Current interest rates are at lower levels than experienced in the past. It
is anticipated that interest rates will grow moderately in the near term but not to levels that
will generate positive net revenues for the Airport.
Executive Summary - Page -15
_• __ _ Kenai Municipal Airport Supplemental Planning Assessment
Phase 2 Report October 2005
We recommend that positive steps be taken to increase the Airport's revenues. These ste s
P
include ~ncreasing current tenant rates and char es, leasin available land rather than '
~ ~ sell~ng
to preserve the long-term revenue generating potential of the Airport's assets and using a
portion of the Airport's significant cash balance to develop revenue producing facilities on
Airport property (with appropriate consideration for an adeguate return on investment and
risk assessment).
Investment Policies for Airport Cash Balances - The City's current investment olic for all
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cash balances prescribes that only short term money market instruments can be utilized. The
policy also includes a limitation on term so that rnore than 20 percent of City cash must be
invested with terms of less than one year while no more than 30 percent can be invested for
terms of more than two years. This policy is unnecessarily restrictive for Airport cash and
limits the amount of investment income that can be safely earned.
We recommend that policies for investing Airport cash be revised to ailow for prudent lon er
g
term investments that will provide higher yields.
7.2 Terminal Lease Analysis - Appendix D2
Except for the airline lease, the basic provisions of the Airport's terminal buildin leases are
g
appropriate and need few modifications. V4~e recommend the following revisions for terminal
building leases:
• Airlines - Rewrite the entire lease to reflect a cost-recovery based approach that is
common in the aviation industry and complies with FAA regulations.
• Rental Car Companies - Modify the concession agreements so that space rentals are
escalated for inflation every year, the Ioss damage waiver and fuel replacement char es
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are included in the definition of gross revenues and change the minimum guarantee to
monthly rather than annually.
• Restaurant, Gift Shop, Lounge and Travel Agency - Modify the leases so that s ace
p
rentals are escalated for inflation every year, require that utilities be paid by the tenant
}
and consider removing language related to exclusive leases.
Executive Summary - Page -16
~ Kenai MuniGipal Airport Supplemental Planning Assessment
Phase 2 Report October 2005
• Advertising Display - Modify the concession agreement so that the concession fee is
-- reduced w~th a 20 percent reduction in ar~nual passenger enplanements rather than a 10
percent reduction.
7.3 Rates and Charges Study - Appendix D3
The Airport's current operating revenues are significantly below industry averages for other
non-hub airports. Rates, rentals and fees need to be increased over time in an effort to
approach making the Airport as financially self sufficient as possible in the long-term. The
airlines' current cost per enplaned passenger (total airline rents and fees divided by total
passenger enplanements) is only about $1 compared with a non-hub indust avera e of
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about $6 per enplaned passenger. We recommend the following changes to Airport rates and
charges:
• Prepare and negotiate a new airline agreement that encompasses airfield char es as well
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as terminal rent, reflects common industry practices and provides for rates that more
~~ closely approach recovery of the Airport's operating costs.
~ Establish direct and indirect cost centers within the Airport's accounting structure so that
the costs to operate the airfield, terminal building and other areas of the Airport can be
determined, monitored and used as a basis for establishing rates.
• Estab~ish formula based rates for airlines that are recalculated annually.
~
• Calculate terminal rental rates based on the actual space used by airlines that is rnore
typical of the space airlines commonly rent at other non-hub airports.
• Increase the public automobile parking fee from $2 per day to $3. When parking lot
improvements are made, increase the fee to $4 per day.
• Charge rental car companies for ready/return parking spaces at a rate of $10-$20 er
p
space per month.
• Establish fair market value rental rates (based on lease rate appraisals} for other land and
~
building leases and escalate rates by inflation for each year between appraisal dates.
Executive Summary - Page -17
~ Kena1 Municipal Airport Supplemental Planning Assessment
Phase 2 Report October 2005
7.4 Financial Plan - Appendix D4
This analysis provided the Airport with an overall plan to match its a~ailable capital fundin
g
sources with t~le need for capital improvement expenditures during a short term development
period (2005-2010), a mid term period (2011-2015} and a long-term period (201 b-2025 .
~
The Financial Plan indicated that funding of the twenty-one year capital improvement
program is financially feasible. However, the Financial Plan also provided an analysis of
operating revenues and expenses that revealed the signifcant use of the Airport's cash
balances to fund annual operating deficits. Durin~ the long-term period, the analysis
indicated that the Airport's current rate structure would result in the expenditure of all its
cash reserves and the need for substant~al cash subsides in the future to fund the Ai ort's
~
operating expenses. Recommendations presented in other analysis sections of this report
provided operating revenue improvements that are projected to mitigate, but not resolve, the
signifcant financial shortfalls that are projected.
8.0 ECON~MIC IMPACT STUDY AND BROCHURE
Southeast Strategies completed a study of the economic impacts of the Kenai Munici al
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Airport. Inforrnation sources used for the study included a survey of 27 aviation-related
businesses in the Kenai area, passengers counts, visitor spending statistics, and interviews
with local businesses and other knowledgeable parties. The complete study and an economic
impacts brochure can be found in Appendix E.
Economic impacts were generated from several sources:
~ Businesses on the airport and other businesses that serve them. Examples include
airlines, aircraft maintenance and repair, rental car com anies, fuel su liers ai ort
p pP ~ ~
maintenance, air traffic control, and others.
• Construction projects at the airport such as the parailel taxiway currently under
construction.
• Vlsitors using the airport.
Executive Summary - Page -18
' Kenai Municipal Airport Sup~lemental Planning Assessment
Phase 2 Report October 2005
~ The study showed the average wage paid for aviation-related jobs (including construction)
~~
~
was $41,472 per year. The average wage for v~ sitor-related employment was $1 b,492 per
year.
The following table shows that the total economic ~mpacts of the airport are 533 jobs that pay
nearly $25 million In payroll and generate over $44 million in annual business revenue.
Total Economic Impacts - Kenai Municipal Airport
~
DIRECT INDIRECT
AND
INDUCED
TOTAL
Em lo ment
Aviation-related Businesses 1 b4 149 313
Ai ort Construction Pro~ects 9 6 15
Visitor Ex enditures 146 59 205
Total 318 215 533
Pa rollIm acts
Aviation-related Businesses $11.4 M $7.bM $19.OM
Ai ort Construction Pro~ects $.4 M $.2M $.6M
Visitor Ex enditures $3.1 M $2.1 M $5.2M
Total $14.9M $9.9M $24.8M
Business Revenue
Aviation-related Businesses $1b.9M $13.SM $30.4M
Ai ort Construction Pro~ects $.8M $.SM $1.3M
Visitor Ex enditures $7.1 M $5.2M ~ 12.4M
Tota] $24.8M $19.2M $44.1 M
M = Millions of doliars
8.0 IMPLEMENTATI~N PLAN
Following the submittal of this report, the DOWL team will prepare a proposed
Implementation Plan that identifies the steps required to implement this plan, when they
should be implemented, and who is responsible for implementation. This will be submitted
to the Airport Commission and City Council prior to the November meeting.
Executive Summary - Page -19
KENAI MUNICIPAL AIRPORT
Supplemental Planning Assessment
Phase 2: Airport Land Use Pian
AIRPORT LEASING PR4GRAM CHANGES
Proposed Transition Plan for Transferring Certain Autharity &
Responsibility to a Reconstituted Airport Commission.
This plan presents a series of steps allowing for a gradual, orderly transfer of authority and
responsibility for the Kenai Municipal Airport to a reconstituted Airport Commission by July 1,
2008. For purposes of training and familiarization to prepare members for the assumption of
wider duties, the Commission may have to meet twice per month during parts of the
transition. The dates given are intended only to be representative of the time periods
involved. Amendments to the KMC will be necessary throughout the transition as items of
authority are transferred to the Commission. The word "review" includes making
recommendations, but does not include final approval.
)
DATE(S~ ACTION(S)
,
February 1, 2006 Adopt by ordinance the Airport Reserve boundaries.
March 1, 2406 Amend Chapter 21.25 KMC to reconstitute the Airport
Commission membership and change ail references to
"aeronautical lands" to "Airport Reserve". (Forthe time
being, the Commission would serve in an advisory capacity
on1y, so the duties in .010 would not change.)
April 15, 2046 Appoint / reappoint members to the Commission.
May 15, 2006 Commission briefed on recent and pending KMC
amendments related to the airport.
~"
June 15, 2006 Commission briefed on the FY 2047 airport operatin and
9
_ _ capital budgets.
July 1, 2006 Commission begins reviewing all expenditure ap roval
p
requests related to the airport before the are sent to the
Y
Council; Commission also begins reviewing all applications
to lease land in the Airport Reserve prior to their
submission to the Council,
July 1-
October 1, 2006 Commission briefed on airpart operations, terminal
operations, FAA grant assurances, airport security, leasing
procedures, and the status of all on-going projects.
October 1, 2006 Planning Commission adopts "Airport Zone" for Air ort
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Reserve lands; In addition to reviewing new lease
applications, the Airport Commission begins reviewing all
proposals for lease changes, assignments, and lessee
construction, as well as staff recommendations for lease
enforcement action or lease termination.
~ctober 1, 2006 -
July 1, 2007 For training purposes, Commission is included in: Each
stage of the preparation and adoption of the FY 2008
airport operating and capital budgets; Every Council
decision related to the airport; Every airport regulation
change by the City Manager,
r"
~ January 1, 2007 Commission begins reviewing appeals to the Council of
Airport Manager / City Manager decisions regarding the
airport. Commission assumes responsibility far marketing
the airport.
July 1, 2001 Responsibility & authority for the following are moved to the
Commission: Adopting airport regulations, including airport
user fees; Approval / rejection of all airport expenditures
consistent with Council-approved budgets; Approval /
rejection of all applications 1 proposals for leases, lease
changes, assignments, subleases, and lessee construction
related to land within the Airport Reserve; Deciding
appeals from Airport Manager/ City Managerdecisions
related to the airport.
During FY 2008 Commission responsible for: Preparing and presenting to
Council the FY 2009 capital and operating budgets forthe
airport; Proposing to Council changes to the KMC,
especially those necessary to complete the transition by
July 1, 2008.
January 1, 2008 Commission given final decision authority for the
supervision, hiring, and firing of the Airport Manager. Land
use authority for the Airport Reserve transferred from
Planning Commission to Airport Commission.
March 1- July 1, 2008 Commission coordinates the final details of the transition.
. July 1, 2008 .~ Transition completed; Commission assumes responsibility
} . . . , +
_ for all duties listed in the delegation of authority
recommendations.