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10/02/1995 - City Council Special AGENDA SPECIAL CITY COUNCIL MEETING Monday October 2, 1995 5:00 p.m. Black Hawk Middle School L ROLL CALL & ADOPTION OF AGENDA II. VISITORS TO BE HEARD IIL ANALYSIS OF CARRIAGE HILLS COUNTRY CLUB AS A POSSIBLE ACQUISITION FOR A MUNICIPAL GOLF COURSE IV. RECENT LEGISLATION/COMPREHENSIVE GUIDE PLAN/ZONING V. OTHER BUSINESS VI. ADJOURNMENT • • 4k 4 MEMO _city of eagan TO: HONORABLE MAYOR & CITY COUNCILMEMBERS FROM: CITY ADMINISTRATOR HEDGES DATE: SEPTEMBER 29, 1995 SUBJECT: SPECIAL CITY COUNCIL MEETING/MONDAY, OCTOBER 2, 1995 A Special City Council meeting is scheduled for Monday, October 2, 1995 at 5:00 p.m. at Black Hawk Middle School. The purpose of the meeting is to receive information from the City's fiscal consultant, Springsted, and Effective Golf Course Systems Inc., who will both provide an analysis of the key issues important to the City's consideration of acquiring and operating the present Carriage Hills Country Club as a municipal golf course. If time permits during the work session, the Director of Community Development will provide a brief update on recent legislation pertaining to cities' responsibility to address the comprehensive guide plan and zoning maps during the next two years and what that legislation means to the community, especially where there is a difference in how a land is zoned and comp guided at the present time. MUNICIPAL GOLF COURSE STUDY On Tuesday, June 20, the City Administrator received a telephone call from Tom Westbrook, golf course manager for Carriage Hills Golf Course, indicating that the owner is considering a sale of the golf course. Mr. Westbrook indicated that they were contacted by development companies interested in acquiring the property for residential home development. He had further indicated that Mr. Smith's first choice is to leave the property as a golf course and offer it to the City as a municipal golf course. During the summer, the City Administrator was directed to work with the City's fiscal consultant and Effective Golf Course Systems Inc. to determine whether acquiring Carriage Hills as a municipal golf course is feasible as a public enterprise operation. In other words, there would be no property tax subsidies or financial involvement by the general fund. Staff, including the Director of Finance, Director of Parks & Recreation, Community Development Director and City Administrator, met with Dave MacGillivray, Springsted Inc., . and three representatives of Effective Golf Course Systems Inc., on Wednesday, September 27, to review their findings. fr Enclosed without page number is a copy of the report prepared by Effective Golf Course Systems Inc. entitled, "Analysis of Key Issues Important to Possible Acquisition of Carriage Hills Country Club by the City of Eagan, Minnesota." The consultants will be present on Monday to present the report to the City Council. Please note that the first eleven pages contain more general information about municipal v. private ownership in operation of golf courses,while the data from page 12 through the remainder of the report is a specific assessment of the present facilities and operations at Carriage Hills. It should also be noted that no specific market study has been performed; however, the consultants have a vast amount of information that will be helpful if the City Council has questions about golf course saturation, number of rounds and the market place within the Twin Cities, specifically Dakota County. A market study analysis could be performed as a future step to this process. It should also be noted that all the financial analysis performed by Springsted is based on a revenue bond approach. In other words, the purchase price, capital improvements and operating revenues would need to generate a positive cash flow in order for a revenue bohd sale to be successful. A revenue bond for recreational purposes, such as a golf course, cannot be backed by the general obligation of the community without a bond referendum. This differs from a water treatment plant issue whereby revenue bonds were sold with a GO backing and no bond referendum. It should also be noted that if the City were to contract the operations of the golf course, allowing it to be run as a profit center, the revenue bonds could be taxable and change the entire pro forma. Staff is aware of a 200 acre parcel that is currently undeveloped that might be available for acquisition. The question was raised with the consultants, after receiving and reviewing the analysis, whether the purchase of land and development of a golf course from scratch would be more economically feasible given the constraints at the Carriage Hills Golf Course that were identified in the report. The consultants will give further consideration to a new golf course start-up and report on Monday as part of the overall presentation. COMPREHENSIVE GUIDE PLAN As stated, if time permits, the Director of Community Development will provide an update on recent legislation addressing the comprehensive guide plan/zoning for all metropolitan communities. OTHER BUSINESS • It is not anticipated there will be any additional business for consideration by the Council at the workshop at this time. /S/ Thomas L. Hedges City Administrator r r ANALYSIS OF KEY ISSUES IMPORTANT TO THE POSSIBLE ACQUISITION OF CARRIAGE HILLS GOLF COURSE BY THE CITY 1 OF EAGAN, MINNESOTA BY: EFFECTIVE GOLF COURSE SYSTEMS, INC 6410 MORGAN AVE.S RICHFIELD, MN 55423 SEPTEMBER, 1995 TELEPHONE: (612) 926-5862 FAX: (612) 926-5862 . i 1 .� rANALYSIS OF KEY ISSUES IMPORTANT TO POSSIBLE ACQUISITION OF C=ARRIAGE FIII IS COUNTRY CLUB BY THE CITY OF EAGAN, MINNESOTA Effective Golf Course Systems, Inc. September 1995 Introduction The City of Eagan, through its City Administrator and Director of Parks and Recreation, has requested of Effective Golf Course Systems (EGCS) an analysis of key issues important to the city's consideration of acquiring and operating the present Carriage Hills Country Club as a municipal golf course. Carriage Hills Country Club is presently operated by its owner, William Smith, as a daily fee regulation 18-hole course. Mr. Smith desires to sell the course complete with all land, buildings, maintenance equipment and golf cars at the close of the 1995 golfing season or shortly thereafter in late autumn. EGCS's analysis of key issues follows below. Municipal versus private ownership and operation of golf courses Questions have been raised about the appropriateness of a municipality (as opposed to private enterprise) becoming involved in the development and operation of a golf course. Municipal golf courses, nationally as well as locally, are considered to be a legitimate part of the mix of services, programs and facilities offered by a municipality through its Parks and Recreation Department. Over 2,400 municipal courses exist throughout the United States. They are acknowledged as such by the professional fields of recreation and leisure and written about frequently in the national Journal of Parks and Recreation and the United States Golf Association's Golf Journal. Twenty-five municipal courses are to be found throughout the Twin Cities Metro Area— in the cities of Minneapolis, St. Paul, Cottage Grove, Bloomington, Brooklyn Park, Edina, Golden Valley, Inver Grove Heights, Mounds View, Richfield, Roseville, and are under consideration in other areas. EGCS considers it entirely appropriate for the city to pursue city ownership and operation of a municipal course. Reasons for municipal ownership and operation include: 1 A municipal golf course would be the best assurance of the preservation of green space in the community. 2 With public accountability, a course owned and operated by the city may be the surest mechanism for ensuring that the land will continue to be used for recreational purposes for its residents. If owned as private enterprise, the owners could decide to sell out or convert the land for non-golf, non-recreational uses. 1 2 3 A golf course could be a winner, monetarily, for other municipal recreational facilities and programs. This can happen, however, only if the city first ensures that it is taking care of the course's needs for quality upkeep and any upgrading that is needed. The city should not assume, however, that there will be any guarantee of net income from the operation of the golf course for use elsewhere in the city. 4 The clubhouse and the course offer possibilities of off-season recreational opportunities through the Parks and Recreation Department such as hiking, jogging, cross-country skiing, and use of the clubhouse for community meetings and functions. 5 Private enterprise golf courses do not function merely to provide a recreational amenity. They exist to make a profit. The best assurance of lowest possible golf fees would rest with a non-profit entity such as a municipality. 6 Being directly responsible to the citizens, city ownership and operation offers the greatest likelihood that the golf course will be responsive to its citizen golfers and operate in their best interests. Reasons for private ownership and operation include: 1 The argument that a municipality should engage only in those activities and functions which private enterprise cannot provide or that it is inappropriate for private enterprise to provide. 2 There is no guarantee that a municipal golf course will make a profit or break even. If it fails to do so, then it becomes the obligation of the city to find the money to make up the shortfall. Losses if owned and operated privately, do not become the obligation of the city or its residents. The question of whether a privately owned public course for public play in Eagan will remain affordable and in place is a real concern, given present land values and economic { trends. A community with rapid growth and escalating land values must set aside open space early before `build out" or it will not be able to afford such an endeavor later. The cities of Bloomington, Minnetonka/Hopkins and Eden Prairie have either land values that are too high or no remaining open space for golf course development. All of these cities would like to have a regulation length municipal golf course. • Economic viability of municipal golf courses The question of the purchase of Carriage Hills Country Club from an economic standpoint must be coupled with the long range desires and goals of the City of Eagan. The short term situation will likely experience a shortfall in revenues to the expenses of operation and debt retirement. This is not unusual for public and particularly municipal golf courses I' Ir II 4 3 The break-even point in terms of cumulative net income may be seven to ten years out, or longer, but often net income and cumulative net income over the last 10 years of a 20- year revenue bond can look very good, eclipsing early deficits. That is why 20-year economic proformas are developed and they become the basis for decision-making regarding the issuance of revenue bonds. Fortunately, debt retirement on revenue bonds can often be structured to allow for lower revenue in the earlier years and greater revenue in later years as the number of rounds played builds to a maximum level. The PROS and CONS of city ownership and operation of a golf course are outlined below. PROS CONS I As the City of Eagan builds out to its Alternate, non-golf use of the land occupied projected population of 80,000, the by Carriage Hills Country Club will increase retention of open space becomes the City's tax base even though additional increasingly difficult. This project would city services will be needed. ensure the preservation of open space. The city will have to assume certain financial This particular piece of open space should risks associated with the purchase and not become a tax burden because the cost improvement of the facility should it not of operating it and debt retirement should reach its desired levels of revenue. be covered by users. The city will have to insure itself against the The facility can be a multi-use park the operational risks associated with the facility including winter use activities. game of golf. This is not unlike other special The clubhouse might even be utilized use facilities such as swimming pools and for community meetings and programs. or ice arenas. The amenity of a golf course for youth Additional city labor contracts may have to activities, working adults and retired be negotiated, although such associated seniors cannot be overstated. This will costs should be borne by the facility. become an attraction to future residents and it will increase valuation of adjoining City staff and administrators will need to property. allocate time to decision-making and policy establishment commensurate with The Eagan Park & Recreation Department running a busy public use facility. will be able to offer a more diversified program of recreational activities. Golfing venues available to Eagan for operation as a municipal facility EGCS met with Ken Vraa, Director of Parks and Recreation for the City of Eagan to explore alternate sites for a possible municipal golf course in the city. The map of the city produced by the Parks and Recreation Department showing existing parks and other land within the city was used as the basis for this analysis. Approximately 120 to 130 acres are needed to build an 18-hole regulation length golf course and 150 or more acres are preferred to accommodate clubhouse, parking, and 1 driving range. • 4 None of the city parks have the acreage needed to build a golf course. Other pieces of • �' P g g P land that might be large enough are already committed to other uses. This includes land used by West Publishing, Eagandale which is platted for development, land owned by Opus, another property owned by Unisys, and land being developed by Rottlund. Lebanon Hills Regional Park is not available for development of a municipal golf facility. Thus, Carriage Hills Country Club is the only viable site in the City of Eagan for municipal ownership and operation of a golf course. Elements essential to a quality municipal golf facility Physical access There are two dimensions to physical access: 1) access via major arteries from various ( areas of a metropolitan area to the community in which the course is located, and 2) specific access to the clubhouse and parking lot once in the general vicinity. Patronage by golfers outside the local community will depend more on the time it takes from their point of origin than the number of miles. If a course is of good quality and it is possible to get a tee time, golf aficionados will drive 20-30 minutes to play. If the arterial network in a metro area is good, that will place thousands of golfers within the potential market. Once the destination community is reached, it is helpful if the routing to the course is relatively simple, requiring minimum changes in direction and utilizing major boulevards or streets. Clear directional signage 1-2 intersections before reaching the course will be important. The last thing a golf course wants is the golfer frustrated by making wrong turns and possibly late for a tee time. First impressions count. Once golfers have played the course for a few times, they are not likely to become lost on return visits to the course. Upon reaching the course, an inviting entrance helps to create a positive image. Simple routing facilitates effective promotional campaigns through advertisements in local and metropolitan newspapers, through regional and/or state golf journals, and illustrated golf directories and maps. ( Parking facilities acilities In planning for adequate parking, six groups must be taken into account: golfers who have arrived but who must wait for their tee time, golfers out on the course, golfers who have completed their round but haven't left the facility, golfers who are there only to practice or take a lesson (assuming such facilities exist), non-golfers at the clubhouse for a meeting or special event in the clubhouse., and employees. This can add up to a large number of parking stalls. Maximum space should be made available adjacent to the clubhouse, and if that is not sufficient, then an auxiliary parking lot should be established nearby to handle overflow. If possible, the parking lot should be blacktopped with parking stalls clearly painted on the surface. Curbing is helpful, but not essential. Lighting in the parking lot is desirable for safety and security at evening events and for golfers who leave after dark. One of the most common faults with parking lots at golf courses is their inability to handle maximum demand. Where this occurs, major frustration among patrons can be expected. Space and • 5 r- routing for a drive-up drop-off for clubs and golfers near the golf shop should be provided. Also, space should be blocked out for those entering the clubhouse for non- golfing events. Clubhouse (condition and functionality) The infrastructure of the clubhouse must be sound—heating, air conditioning, other utilities, restrooms and small locker rooms, food and beverage service facilities, roofing, siding etc. The restroom and locker room areas should be directly accessible from both outside and inside the clubhouse. The clubhouse must be attractive— inside and out—free of needed repairs and refinishing. It must be appealing in appearance so that golfers and visitors want to come to the clubhouse for golf or other activities and programs. As much as possible, the inside should be light and airy, with vistas to the course outside. The appointments, primarily furniture, lighting an carpeting should be in top condition, or replaced if not. The clubhouse must be efficient and effective in its use of space. Its configuration must result in the best use of space for the purposes for which it is intended. It should enhance the flow of activity associated with golf and other activities at the clubhouse. As in all design decisions, form must follow function. Deficiencies may necessitate remodeling in order to achieve these objectives. Safety and security must be assured, being up to code with sprinklers and fire alarm systems. All applicable code requirements must be met. Course quality and features 1. Course playability The course must be playable across all skill levels, both for men and women. Any course, to be successful, needs to be seen as fair to its golfers. All golfers need to enjoy a measure of success or they will not return to play again. The course should have a variety of tees appropriate to the varying skill levels of golfers. Ideally, tees should be located providing course length varying from 5200 to 6600 yards. Golfers who do not hit the ball very far will have to be able to negotiate holes that call for carry over an obstacle such as water. Courses that have numerous sand bunkers that are large, deep and close to the fairway or green pose a challenge that will frustrate many golfers. Holes that have substantial changes in elevation from tee to green will be disliked by senior golfers to the point that, playing the course once, likely will not return to play the course again. Seniors consume many of the tee times during the week, especially during the morning. They fill the schedule. This sector of the golf market is essential to the success of most public golf facilities. A course must be eminently playable by seniors. _ I . 6 ii If. If anything, a course is better to be seen as too easy to golfers than too difficult. Golfers will return again and again if they are treated well by the course, and treated well by those who operate the course. 2 Quality greens r The greens are the "heart" of any golf course. For all but the high handicapper, it they come into play on 60-75 percent of his/her strokes—the approach shot and (usually) two putts. They should be large enough to accommodate the amount of play intended so as not to become worn out. Greens are very sensitive to weather conditions of heat and humidity and must be cared for regularly. A green should be designed to hold the golf shot for a given length approach shot. Examples of this are greens which are tilted to face an incoming high or low trajectory shot. Greens which are mounded or which pitch away from an incoming shot are simply not fair. ( The maintenance practices of the superintendent and maintenance crew are very important for the health of the grass. Greens can be dead in a matter of days if they are not monitored during periods of high humidity and temperature. Aeration of greens to reduce compaction is also necessary and should be performed once ( or twice each year. 3 Quality tees Quality tees are probably second in importance to quality greens. The feeling about hitting a good tee shot has greater psychological impact on the golfer than any subsequent shot on the hole. Golfers expect tees with good, consistent growth of turf. They want tees which are smooth—neither bumpy nor undulating. They want tees which do-not slope side-to-side, or front to back. The,teeing ground need only slope 1-2 percent in order to drain properly. By far the most prevalent problem with public course teeing areas is that they are too small. Present levels of play demand large tees so that the location of the tee markers can be rotated on a daily basis to prevent overuse in any area. 4 Quality fairways Fairways at most public courses in Minnesota consist of Kentucky Bluegrass. This produces a healthy stand of grass if irrigated, aerated, and fertilized on a timely basis. If these practices are not adhered to, fairways will become weed infested, spotty, burnt out or even dead. What the golfer wants is a consistent stand of grass whereby the ball sits up for a good shot from the fairway. Frequency of mowing is important to all areas (greens daily, tees 2-3 times per week, and fairways twice weekly). 1 i I 7 rA tvlbolo,'v of_golfers:Its relationship to preference f or golfing venues and course playability [ In order to project a market for golf at a proposed site, it is important to understand various types of golfers and their preferences for features and quality in a golf course. The nature of golfers varies widely, from young golfers to old, men and women, from novice ( to expert, from the laid back and casual, to the social, to the highly competitive. What type of course these golfers prefer to play, or are even willing to play varies widely. The character or nature of a course can have a major effect on the nature and size of its clientele. Within certain limits, it is possible to predict what types of golfers prefer or are willing to play which types of courses. The novice or beginninggolfer The novice or beginning golfer, unless a member of an upscale private club, does not have high expectations about the quality of the course on which to play or take lessons. If anything, this golfer might feel uncomfortable on a meticulously groomed course where the caliber of play is high and the pressure of keeping up with the group in front and not slowing down the group following is strongly felt. He (or she)would prefer to start out on a course where the expectations of play are not particularly high, where he would not embarrass himself. A course of more modest proportions would be well-suited to this golfer. The novice golfer will not travel far in order to play golf and will not likely pay a high green fee to play. The social golfer or family golfer The social golfer is looking for an enjoyable time spent with friends and acquaintances. Although the quality of the golfing facility is not unimportant to him or her, it is less important than it would be to the expert or low handicapper who might expect high quality in a golf course. The family golfer is looking for an opportunity to play with other family members, with wives, husbands, sons, or daughters. They are looking for an unharried outing, and the opportunity to get together for golf is more important than the quality of the golf course. The middle handicapper The middle handicapper's golfing abilities are of sufficient magnitude to expect a certain standard of quality in a golf course. They may play a course of modest quality, but when presented with the possibility of playing a better course will usually choose that course. This golfer is more willing than the novice golfer to travel further and pay more for a higher quality golfing experience. The low handicapper The low handicapper plays golf at a level that expects a quality golfing experience. This golfer has minimum, although unstated, expectations of a golf course—adequate length from the back tees (6600 to 7000 yards for men), a challenging, though fair, test of one's golfing abilities, the presence of hazards such as sand bunkers, water hazards, challenging mowing practices, and well-groomed tees, fairways, and greens. This golfer will not play a course of marginal quality_at any price, even if the course is only minutes away. He or 8 she, if necessary, will travel up to an hour or more to play a quality course, and pay upwards of 50% more than the fee for a course of modest quality. The senior men's golfer - I One of two special subcategories of golfer is the senior men's golfer. It is worthy of special note because these golfers can and do make significant contributions to the number of rounds of golf played at many courses. Those who are retired can play golf anytime, and often do so when the course is not likely to be busy—during mornings on weekdays. These golfers may play two or more times a week and log 50 or more rounds of golf each season. As retirees, they are usually on fixed incomes, and discounted senior rates are often available. Seniors enjoy being a part of senior leagues for social reasons and low-level competition. Women golfers The second subcategory of golfer worthy of special note and the one experiencing the greatest growth in golf over the past decade has been women golfers. Many public golf courses could not survive financially were it not for the growth of women's golf. Braemar Golf Course, the municipal course in Edina has 16 women's leagues which play weekly. There are two distinct groups of women golfers: 1) those who are not employed (usually seniors or middle age) and who play in leagues during weekday mornings and 2) those who are employed (often younger) and play on weekdays in late afternoon or early. evenings. Women often play on weekends as well. Implications for plavability Playability is the capacity of the course to offer a fair and reasonable test of one's golfing abilities across all skill levels of golf. Playability is not particularly a factor for low handicappers. These golfers can cope with nearly any condition or situation on a course, unless a condition represents an unreasonable or virtually impossible playing condition. Playability becomes an important condition for middle handicappers, or average golfers. The playability of a course can cause one's golf score to be substantially higher than would be expected thus leading to frustration, and worse, an unwillingness to play the course again. If playability is important for middle handicappers, it may be crucial for higher handicap golfers, especially seniors and women for whom fairness is of utmost importance. They are more likely to be looking for enjoyment than challenge. No one likes to feel that the course "beat up" on them. Course management should want all golfers to be able to leave the course feeling good about their experience that day. The bulk of play on nearly any golfing facility, perhaps 90 percent, is comprised of middle and high handicappers, the presence of seniors, women, juniors, even families. Success or failure will depend on the capacity of the course to appeal to all of these sectors in building and sustaining a repeating clientele. [ 9 factors Pla abili y A number of factors affect P la abili . They are described herewith and became the basis Y tY Y for an on-site review by EGCS. Tees 1 Is the tee of adequate size to allow markers to be set at various positions so that the turf does not wear out and so that the golfer does not feel "crowded" into a short or narrow position? 2 Aside from modest slope for drainage, is the tee level? Does it have any hogbacks or depressions that cause the golfer difficulty in taking a good address or set-up to hit the ball? Fairways Y 1 Is the fairway landing area observable from the tee, avoiding blind tee shots? 2 Is the mowing pattern between fairway and rough well-defined to enable the golfer to see where to hit the next shot? 3 What is the terrain or topography like in the fairway and typical landing areas? Is it downhill, sidehill, uphill creating unfairly difficult shots? Is the fairway relatively smooth, or plagued with small rolls creating difficult lies? 4 Are there any out-of-bounds along the fairway that are close enough to be unfairly punitive? 5 Is the fairway turf in good condition, with evenness and consistency, enabling the ball to "sit up" for crisp shots with fairway woods or irons? 6 Is the fairway crowned along its centerline causing tee shots to bound off the fairway right and left? The green as a target for approach shots 1 Is the size of the green adequate, given the length of the approach shot to the green or the presence of an elevated green? 2 Is the texture of the green such that it will reasonably "hold" a good approach shot? Is the contour of the green crowned (convex, like an inverted saucer) thus reducing the effective size of the green? Is the green slanted to absorb the approach shot, or does it break away from the approach shot causing the ball to `run" 3 What is the topography around the green? Does it drop off down a slope causing the ball to "run" and making the recovery shot difficult? The green as a putting surface 1 Does the size or shape of the green pose any unusual and unfair difficulties in putting? 2 Does the contour of the green pose any unusual and unfair conditions in putting? 3 Are the turf conditions good for putting? Water hazards 1 Are water hazards_along the fairway or at the green unfairly punitive? ' [ 10 [ 2 Are "crossing water hazards" fair across all skill levels of golfers?Are there any such hazards that seniors, women, and young juniors might find difficult if not impossible to cross?What "relief' is available to these golfers to enable them to continue to advance to the green? Trees I 1 Are there trees near the tees, along the fairway landing areas, or at the greens that are unfairly punitive? 1 I Topography/general 1 Are there changes in elevation a) from tee to fairway, b) along the fairway, c) from f fairway to the green, or d) from green to the next tee that may cause severe physical stress to the golfer—particularly the senior golfer? 2 Can the conditions in 1 be ameliorated by the reasonable, safe use of a golf car? Risk factors 1 Are there situations where errant tee shots—hooks or slices—pose a threat to golfers on adjacent holes? 2 Are there tees which are too close to previous greens whereby an approach shot to the previous green could easily hit someone on the tee? 3 Are there situations where the tee shot or following shots are hit to a blind area that might hit golfers in the group ahead? 4 Are there situations where a hooked or sliced shot may reach a roadway or walking path for non-golfers and hit a car or injure a person? 5 Are there situations where a shot could hit a home, an apartment, or condominium that could cause property damage or personal injury 6 Are there situations where the terrain or topography is so severe that it could pose a danger to a golf car and its occupants? 7 Are patrons in the vicinity of the clubhouse, parking lot, or practice area at risk from errant shots from holes nearby? Maintenance facilities and equipment The size and scope of a maintenance facility will vary from course to course, but it should provide standard minimum features. In size, it should be approximately 50' by 100' to accommodate what it needs to do. The following represent essential features. • Restroom and shower-facilities , • A heated office for the maintenance superintendent • A heated area for working on maintenance equipment • Cold storage for maintenance equipment • OSHA approved safe storage are for chemicals • Minimum fire protection for safety purposes • Chemical waste recovery system and depository • A grinder • Asphalt or concrete floor(concrete preferred) 11 • A hoist • A pressure sprayer washing machine Golf and lesson programs:Driving range/practice center The importance of a teaching program at a public golf course cannot be overstated. This is a major selling point to the facility. Lesson programs teach the game to beginners, invite new customers, sells merchandise, and increases the enjoyment and appreciation of the game to all levels of players. Every community should have the availability of such a program. Ideally, a course will have a driving range/teaching area included with the facility. A driving range is usually a profit center for most public facilities. Included with such facilities is a putting green and a bunker for learning and practicing sand bunker shots. The learning center/practice area creates synergistic opportunities for the facility: 1) learn how to hit shots; 2) practice what you've learned; and 3) apply what you have learned and practiced to playing the course. Alternate uses in the off-season Many private and privately owned public play courses in Minnesota close up completely in the off season, locking the doors to the clubhouse and not reopening until the following April. A municipal golf course is a part of the program and facility offerings of the parks and recreation department. This department is constantly thinking of ways to fulfill the recreative interests of the citizens of its community. A municipal golf course and its facilities offer that opportunity. Marked cross-country ski trails can be established on the course, with a designated part of the clubhouse serving as a "warming hut." • Municipal golf clubhouses can provide meeting space for civic clubs and organizations, as well as for receptions and other special events, providing the design, layout and condition of that space in the clubhouse is appealing and well-suited for these purposes. Staffing/operations management Adequate staffing is crucial to the quality needed to become a quality first choice golf course. This applies both to the maintenance operations and to the clubhouse operations. Starting with maintenance, a"properly staffed maintenance team is essential to improvements in course quality. A minimum maintenance team should include a full-time year round maintenance superintendent, a 9-month assistant superintendent, three 7- `I month full-time maintenance crew workers and summer seasonal help (high school and/or college students). In the clubhouse, a full-time manager anda 9-month assistant manager are needed. To this, pro shop staff are added in order to have two people in the pro shop at all times, seven days a week, covering up to 16 hours a day. , [ 12 1 Equally important to adequate staffing is the manner in which the patrons of a golf course are treated. This derives from the philosophy of how the facility is to be operated. r Successful golf enterprises operate in a manner in which every employee is an ambassador of good will for the course—from the general manager to the summer seasonal maintenance worker. Each patron should leave the course feeling, as the r commercial goes, "They treat you right." If golfers have had that experience, they will come back to the course again and again. Some would argue that how golfers are treated is more important than the quality of the course. i � An assessment of the present facilities and operations at Carriage Hills Physical access With the present arterial network of interstates and other freeways in the Twin Cities metro area, general access to Eagan and the general area of Carriage Hills Country Club is excellent. By using a variety of combinations of I-94, I-494, I-35E and 135-W, a large portion of the metro area is within 30 minutes or less of the course. The course is adjacent to and visible from Yankee Doodle Road, a major artery in Eagan. The entry off Yankee Doodle Road is somewhat obscure, with two service roads (one adjacent to the course and the connecting road through the course to the clubhouse. A better entry could be created by extending the dead end of Duckwood Drive beyond Falcon Way into the course grounds to the clubhouse parking lot. This could be deferred if the cost of doing so were prohibitive at this time. EGCS does not know what the cost of this project would be. Parking facilities The parking lot next to the clubhouse will need to be enlarged beyond its present size. This can be accomplished by the removal of the present maintenance building and maintenance area. The parking area should be blacktopped with parking stalls painted on the surface. Lighting should be added to the parking lot. A nearby parking lot may need to be added as business increases. The layout of features in the vicinity of the parking lot and clubhouse should reflect the efficient flow of activity in that area. This means providing a drive-up bag drop station, a golf car staging area, and paved paths that ease of traffic into and out of that area. Clubhouse(condition and functionality) Master planning improvements will be important. The clubhouse should be reviewed in its totality as it serves various needs. Form, indeed, must follow function. The pro shop should be brought up to date for appearance and functionality. The clubhouse area is essentially a very long and dark room that needs to be made brighter with the feeling of openness to the outside. New carpeting, better lighting and larger window space will help. Removal of golf car storage from the outside of this room will help. 1 I I = 13 The restroom and locker room area needs to be reviewed to make this space look better P and work better. Entry to the restrooms from both inside and outside the clubhouse should be reviewed, so that golfers out on the course can quickly access these facilities. { Outside, the roofing needs to be replaced, the front entry way dressed up to be more appealing, and the exterior. needs to painted. Plantings of shrubs and flowers around the exterior will do much make the clubhouse look good. First impressions of the facility are created as one pulls into the parking lot and sees the clubhouse. Course quality and features As mentioned earlier, the greens are the heart of a golf course. The strength of Carriage Hills golf course is the condition of its greens. They are on good condition, and generally adequate in size. Two exceptions occur: the size, contour and shaping of the greens on #13 and#14 make those greens inordinately difficult. They must be rebuilt as a part of an overall reconstruction in the vicinity of the #13 green and approach area, and the #14 par- 3. While many tees are in acceptable condition, a number of tees must be rebuilt or resurfaced. Of first priority are tees which are undersized or are not flat or smooth. This is particularly the ruse for tees on Holes 6, 7, 8, 9, 13, 17, and 18. Cart paths in need of repair are usually adjacent to tees which need rebuilding and this can be done at the time the tees are rebuilt. The fairways are not presently in good condition. Good fairway conditions are virtually impossible when the current practice is aeration of fairways only once every seven years. The fairways must be aerated twice each year—once in the spring and once in the fall. An aggressive program of aeration, seeding, top dressing and use of slow-release fertilizers in the first two years will be essential to bring the fairway turf to good condition. These practices will be essential to gradual improvement beyond the first two years and the maintenance of good conditions over time. Course Playability The present topography for three holes is crucial to playability, particularly to seniors— both men and women. This clientele is essential to the financial success of Carriage Hills as a municipal course. These must be addressed immediately and resolved, even though it will cause temporary conditions in the play of these holes for one season. These conditions exist on Holes 2, 13, and 14. The change in elevation on Hole 2 from the approach area to the green is steep, causing a strenuous walk for seniors from the low to the elevated green. If shots stop on the hillside, it is not a desirable area to temporarily park golf cars to hit the next shot. The green is fine, but the low area before the green must be elevated to make the transition to the green less demanding. The conditions in the approach area to Hole 13 and the depression between the #14 tee and green should be treated at the same time. The change in elevations must be substantially reduced. This may involve lowering the #13 green while raising the#13 fairway before the green. The #13 green needs to be rebuilt anyway because the depth of the green is too shallow and the contour in the front 15' of the green is too severe. , - 1 14 r . The par 3 14th hole shares the same valley as the approach to#13 green. as a result, the P PP g tee shot on #14 is from one hill to another. After descending from the tee to this valley, i the golfer must climb a steep hill to the green. Seniors will find this climb to be physically exhausting for them, at best, and impossible at worst. A golf car can make the climb, but stopping the car on the hill to make a shot to the green is risky under good conditions and dangerous if the grass is wet. The #14 green must be rebuilt because it is strongly crowned, front to back. Any shot hit on the very front of the green is likely to roll off the front. Any shot hitting the green beyond the midpoint is likely to roll off the back. The frustration level with this hole as it exists will be very high. While contractors are doing earthwork in this area, they should also lower the forward tee on #15 a few feet to eliminate the blind tee shot from the back tee. Ways can be found to play temporary conditions for these holes with the possible exception of#14. Golfers will accept temporary playing conditions if they know course improvements are in the works. A sign, a flyer or brochure, and perhaps an architect's layout in the pro shop will let the golfers in on what's happening. Hole 16 has a playability problem for those who can't hit the ball over the pond. Although faced with the requirement to hit their initial shot over the water, they should be • provided with a "Drop area" where they can hit their next shot to allow them to get to the green. No sign of a drop area was observed by EGCS during its site inspection. Other detailed observations can be reviewed in the appendix, Research Notes. Maintenance facilities and equipment The Carriage Hills maintenance building is too small for the functions required of a maintenance facility. The present equipment cannot all be stored during inclement weather. Additional equipment would only add to the dilemma. EGOS feels that the best Il solution is to build an inexpensive building at a different location, which would still afford good access (centrally located). As previously mentioned under Parking, this would also allow for maximum parking lot space and eliminate the opportunity for theft from the unsecured and often unattended maintenance building. The present gasoline storage within the maintenance area is very unsafe. An OSHA approved above ground or below ground facility needs to be considered. The present building itself would need to brought into OSHA compliance. EGOS recommends the construction of a pole barn type maintenance facility with heated office and cold storage for maintenance equipment. This should be constructed in a place and manner which will allow for expansion. The maintenance equipment at the course is dated but some of it can continue to be used. Some pieces of equipment in the inventory are beyond repair and should be discarded. The salvage value of these items is virtually zero. Modern equipment would be more safe and much more efficient. 1 i 1 15 The list of equipment presently at Carriage Hills follows. Minor items are not included such as grinding devices or hand tools. • 2 Toro F-10 7-gang mowers, one for fairway height cut and one for rough height • 3 Toro 3-gang mowers, about 1975 vintage • 2 Cushman utility vehicles ji • 2 older 3-gang Nationals • 1 Ryan aerator for greens aeration • 1 top dresser • 4 older walk behind greens mowers (not utilized any more) • 1 verticutter • 1 small tank sprayer(dated) • 1 older tractor for utility purposes • Various small trimmers, etc. To this list the following should be purchased: • 1 fairway aerator • 1 lightweight 5-gang fairway mower • 1 new larger capacity sprayer • 2 new Cushman utility vehicles • 1 newer tractor with sickle bar and small back hoe (trade older tractor) Golf and lesson programs:Driving range and practice center Unless there were major reroutings of several of the holes, Carriage Hills does not have the space (the length) for a full scale driving range. This requires 300 yards in length and 100 yards in width. Short of that, however, there may be ways of creating an innovative practice/learning center that would consist of a hitting area with nets or screens on three sides, a putting and chipping green, and a sand bunker to learn and practice sand shots. Golf cars and golf car storage The present golf car storage is barely adequate and does not afford an opportunity to clean cars after rental. Some consideration should be given to new convenient, secure indoor storage, keeping in mind future growth. An old wood frame garage is used for car storage, but this should be demolished. This facility could be part of a new maintenance building. The fenced in area for cars adjacent to the clubhouse is unattractive and would obstruct views from the club room to the course. An attractive golf car staging area should be built close to the clubhouse. Provision should be made to upgrade and expand the golf car fleet. Golf car rental is a major profit center for the golf course, and particularly desirable at Carriage Hills with its rolling terrain. • ( 16 Capital requirements within the framework of master planning With the objective of becoming a "first choice" golfing facility, certain improvements at 1 Carriage Hills will need to be made in the first two years (short-term) of operation as a municipal facility. Money must be found outside of the annual operating budget for these purposes. Unless the City of Eagan were willing to pay for these from some municipal resource outside the golf operations, they need to be capitalized in a revenue bond with the purchase of the course. It will be important to "master plan" the improvements to the facility and first address those most crucial to the economic viability of the facility. These relate to golf revenues, and golf revenues relate most directly to the quality of the golf course. Others with high priority are any that relate to code or regulatory requirements pertaining to the clubhouse or maintenance facilities. EGCS offers the following recommendations for improvements— j both short-term and long-term and an estimation of the costs of short-term improvements. Improvements Short-term Short term est.cost Long-term Access to course Use current entry $0 Relocate to enter via east- ward extension of Duckwood Drive from current dead end ( to the parking lot at the clubhouse. Clubhouse& Re-roofing and painting exterior; $145,000 Expansion of meeting room environs Up-grade pro shop and restrooms; to southwest with large more lighting throughout with more windows to view course in openness. Replace carpeting. Utility, that direction. Suitable for safety, security upgrades as needed. meetings, receptions, etc. Relocate fenced-in golf storage. Clubhouse area landscaping with shrubs, flowers, etc. Maintenance Replace current maintenance $60,000 Enlarge, winterize as needed. building with new pole barn with • heated office and cold storage for equipment and supplies. Purchase of new maintenance $100,000 equipment. Parking Install asphalt surface and concrete $50,000 Add curbing sidewalks. Install lighting Cart storage Build low cold storage building $40,000 Add space as needed. to accommodate 50 golf cars. Course upgrades • Upgrade irrigation system $40,000 Install new irrigation system. • Rebuild and enlarge tees in $20,000 Rebuild or resurface tees greatest need. less critical but needed. • Rebuild and blacktop cart paths $10,000 Continue needed cart path at tees where need is greatest. improvements. • Earth moving to significantly $100,000 Earth moving important reduce elevation changes in front but less critical to playability. of#2 green,#13 green, and Relocation of#9 green tee-to-green on#14; rebuild#13 Eliminating crowned fairway • I [ 17 i._ Improvements Short-term Short term est.cost Long-term and#14 greens in conjunction with on hole#5 earth moving; grade out and lower Create parallel doglegs out of forward tee on#15 #12 and#18 • Extra seed, top dressing and $20,000 chemicals needed in first two years to bring fairway and green turf up to grade. Financial implications resulting from assessment of facilities and operations at Carriage Hills Country Club The two previous sections indicate that changes in the maintenance and management operations of the course as well as short term improvements in the physical facilities are needed if it is to realize its potential as a successful public facility. These changes include some $585,000 in capital improvements in the subsequent first two years of public operation as well as a reorganization of the management operations of the course. EGCS is aware that an initial asking price for the facility by the present owner is $5,000,000. If one adds the $585,000 of capital improvements to this purchase price the initial outlay by the City of Eagan would be $5,585,000. If one also adds approximately 10 percent of the outlay to cover the various costs of a 20-year revenue bond issue to purchase and operate the facility the resulting bond issue size would be $6,143,500. EGCS calculates the 20-year principal plus interest payments would approximate $11,202,000. EGCS has prepared two scenarios designed to provide a preliminary estimate of total net income (before debt service) of the facility over the 20-year period. These two scenarios are based on: . Example 1: An analogy with detailed financial proformas prepared by EGOS for other, but comparable, facilities; and, . • Example 2: The construction of a revenue/operating expense/capital outlay proforma ( based on typical income and expense streams for the operation of an 18- 1 hole facility. The results of these two independent projections produce similar results. In example 1, the 20 year cumulative net income flow is estimated at $11,650,000. In example 2, it is $11,727,927—a difference of 0.67 percent: Thus, under either case, the City of Eagan is estimated to realize a cumulative net income —after debt repayment— of only $448,000 to $522,000 over the 20-year period. This provides an average annual net income to the city of about $25,000. The judgment is not EGCS's to make but the analysis indicates to us that the owner's offering purchase price leaves the City of Eagan with little or no "wiggle room" and • • 18 means that the facility will carry a negative value for most of its 20-year financed life cycle. In that context, should the facility not prove financially successful the City has two options: To either underwrite the operation with tax dollars as it does for other city recreational facilities or to dispose of the land for private development. If the city were able to negotiate a purchase price less than $5,000,000, then that change would necessarily call for recalculations of debt service and resulting net income. The scope of this analysis and report by EGCS is not sufficient to enable the City of Eagan to make a final decision on acquisition. That would entail a detailed market analysis focusing on market area competition, population trends in the market area(s), and a complete financial proforma- including refinements in projected rounds, pricing, complete staffing, detailed projections of operating costs, and acquisitions and improvements beyond those initially capitalized during the first two years. EGCS is prepared to serve the City of Eagan in this next phase should the City decide to move forward-based on this report, information provided by Springsted, and its own discussions of the matter. TABLE ONE CARRIAGE HILLS GOLF COURSE, INCOME/EXPENSE VERSION ONE, SIMILAR COURSES YEAR# YEAR INCOME EXPENSE NET 1 1996 $519,000 $383,000 $136,000 2 1997 $588,000 $405,000 $183,000 3 1998 $657,000 $427,000 $230,000 4 1999 $726,000 $449,000 $277,000 5 2000 $795,000 $471,000 $324,000 6 2001 $864,000 $493,000 $371,000 7 2002 $933,000 $515,000 $418,000 8 2003 $1,002,000 $537,000 $465,000 9 2004 $1,071,000 $559,000 $512,000 10 2005 $1,140,000 $581,000 $559,000 11 2006 $1,209,000 $603,000 $606,000 12 2007 $1,278,000 $625,000 $653,000 13 2008 $1,347,000 $647,000 $700,000 14 2009 $1,416,000 $669,000 $747,000 15 2010 $1,485,000 $691,000 $794,000 16 2011 $1,554,000 $713,000 $841,000 { 17 2012 $1,623,000 $735,000 $888,000 18 2013 $1,692,000 $757,000 $935,000 19 2014 $1,761,000 $779,000 $982,000 20 2015 $1,830,000 $801,000 $1,029,000 CUMULATIVE NET INCOME: BEFORE DEBT SERVICE $11,650,000 I, 1 19 1 N :• ::. 0 m C::: N Y 17 A W N mY};v:•••;:1 O n m $. n 10 o m m en:•7:4.•:• ..... ? m !i m 11i N 6::::::;;;;:::§:-:....' 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W Q Z g W W a:::!i ::::fry K O F W g Q J W U ,:.: + y W O O Z 2 „);:::40:::.:z. O 2 1{ Ili a Z Z 2 0 F- W y{%; a Z W O p • ; W a W.•.. > v z z w O, % a 0 z z z a J ' ,; C W Z O y.: ... . W CO 0 W Q g . 0 y m m :.:: � K 2 2 U W y J 2 F K K .. O O m J W g O LL O W K p ::?::.. Q O O W O 0 - ::;Z I. W U 0 J 0 O` H:}:�: ::::::'W U 0 0 E U U f U. 0 O U N. Z . U • 21 APPENDIX Research Notes An inspection of the golf course at Carriage Hills Country Club by Effective Golf Course Systems Hole 1 The tee surface is not in good condition and needs to be enlarged. A separate forward tee should be considered. If the position of#9 green needs to be moved further to the left and away from the condominiums, then the #1 tee should be moved forward so tee shots do not endanger golfers at relocated#9 green. The fairway needs an intensive program of seeding„ top dressing; use of slow release fertilizers and aeration. The fairways currently are aerated only ( once every seven years. They should be aerated every spring and fall. This situation is existent on all holes, so repeated reference to this factor will not be made. Planting trees or evergreens at the back and right of the green for P rotection against hooked tee shots from Tee #2 should be considered. The green is in excellent condition. The condition of the greens is the strength of the course. They will not be described for other holes unless there is a particular need which must be addressed. Hole 2 The back tee is in good condition and good size. The forward tee is simply a mowed spot that is not level. A tee box must be built for this forward tee. A sliced tee shot could end up on the road to the right. This represents a moderate risk. The green is elevated and the approach to the green is fairly steep. Senior men and women golfers will find this ascent very arduous. Use of a golf car will ease the problem, but stopping the car on the uphill approach to hit a shot poses some risk. Consideration should be given to earth moving of both cuts and fills that would lower the green somewhat and fill in the low areas preceding the green, thus reducing the change in elevation. The green is split level and appears deep enough to hold approach shots. Hole 3 This is a beautiful par 3 from an elevated tee. Alteration of the mowed area behind the green is recommended so it would not be as steep and would reduce the risk of overturning a mower. Hole 4 The back tee and forward tee are OK. Green is small but acceptable for a short par-4. 22 Hole 5 Several major risks exist at this hole. The cart path is immediately behind the #4 green and loops past that green for golfers who are departing from the #5 tee. An approach shot that is long or to the left of the #4 green could easily ( hit someone on the cart path or golfers waiting to walk to the#5 forward tee. EGCS would recommend that a paved cart path be created that would enable golf car users to drive up to the elevation of the #5 tee on the left side. The cart path would then extend straight forward toward the fairway and not return to the vicinity of the #4 green. By standing at the back of the back tee, one can see that the orientation or alignment of the tee is toward the newly paved walking path and Yankee Doodle Road. If the golfer preparing to hit the tee shot takes his/her stance in alignment with the tee rather than the fairway, he/she will aim toward the road. The fairway is crowned (convex) in the center, and any tee shot hit too far left of center will bound down to the left, and any tee shot hit too far right of center will bound down to the right. This reduces the effective width of the fairway. What is needed is earth moving to eliminate this crown in the ( center of the fairway. Hole 6 The cart path by#6 tee needs repair—grading out and blacktopping. The tee is much too small. Risk occurs with apartments and tennis court on right. Long-term solution to apartments and tennis courts on right might be to relocate the tee short of and to the left of#5 green and create a dogleg out of the hole. For long tee shots, the tee shot carries to a blind landing area. Fairway should be graded out to eliminate this problem. In the long term, it would be advisable to cover the ditch across the fairway and install underground drainage tile. Hole 7 The tee is too small and needs to be rebuilt and enlarged. Hole 8 The tee is too small and needs to be rebuilt and enlarged. Hole 9 The tee needs to be enlarged. The condominiums to the right of the green are approximately 25 yards from the right edge of the green. For a long par- 3 of 183 yards, most golfers will use woods or long irons off the tee. With the greater margin of error for these clubs, the possibility of hitting the condominiums is significant. • Rebuilding the green 20-25 yards to the left of the present green should be considered. Hole 10 The tee should be rebuilt. The tee shot landing area is severely sloped from right to left, and presents the possibility of a blind landing area on the right. Consideration should be give to regrading in this area with cuts to the right side and corresponding fills to the left. 23 A moderate risk occurs of hitting golfers on the #11 tee if the approach shot is long and left of the green. Hole 11 To avoid the risk of being hit by approach shots to the#10 green, consideration should be given to relocating the tee to an area within the grove of trees to the right of the tee. Earth moving to create an elevated tee in that area may be substantial. A peninsula tee in that area, hitting out of chute created in the trees, would eliminate the risk of being hit by approach ,I ( shots on #10 and of hitting someone in the #10 fairway. II Hole 12 The tee is now set at 295 yards, just ahead of a small marshy area to reduce the risk of slicing a tee shot onto homes on the right. It would be nice to move the tee back to a spot near its original location to regain distance if the risk to the right can be controlled. A long-term solution might to create #12 and #18 as parallel doglegs where the tee shot on#12 is directed to the left away from the homes. Hole 13 The combined tees of#13 and#18 will need to be rebuilt. Presently they are too small and uneven. The cart paths associated with these tees will need to be regraded and blacktopped. The landing area from the back tee is somewhat obscured by the low hill on the right side of the fairway. It would be helpful if this could be lowered. The cuts from this are badly needed to fill in much of the low in front of the green. The change in elevation from the approach to the green is too severe. If this course is to attract seniors—both men and women—the severity of this change in elevation must be reduced. The front of the green breaks off severely to the front and the green is very ( shallow. This green will need to be rebuilt so that it is larger and so that it can absorb the approach shot. The playability of this hole as it presently exists is poor. Hole 14 Hole 14 is a par 3 from one hill top to another. Although the elevation of the tee and green is similar, a large depression lies in between, making it somewhat difficult to negotiate by golf car and straining for the senior golfer. This difficulty is evidenced by the fact that many golfers will walk from the tee to a road to the left, down the road, and back onto the course where the elevation of the green is the same. If the grass were wet, EGCS feels that it would be unsafe to drive a cart up the hill in front of the green. As a target, the green is crowned front to back with little depth. Some shots that hit the front of the green may roll back off the front. Tee shots that hit the middle of the green or beyond are likely to roll off the back. The playability of this hole is very poor. Substantial earth moving between the tee and the green and reconstruction of the green and environs will be required to make this hole playable across the variety of skill levels that this course must attract. .. 24 Hole 15 The tee needs to be enlarged. At present the tee shot is blind because of the elevation of the red tee. Grading this area out to see the landing area will not be difficult, and the excavated dirt could be used to fill a depression about 50 yards in front of the red tee. Hole 15 is very attractive. Hole 16 The carry over the water(perhaps 130 yards from the back tee and 100 yards from the front tee) on this par 3 will be difficult for seniors, women and others who don't hit their tee shots too far. It is not clear what relief is available after hitting the first shot into the water. Is there a drop area that will enable to golfer to advance to the green? In order to walk or drive to the green, golfers must go around the right side of the pond. This poses a risk as this is within range of tee shots from the 15th tee. Caution through signage both on the 15th tee and the 16th tee will reduce the risk. Hole 17 The tee is much too small and not in good condition. It must be replaced [ with a larger, properly built tee. Hole 18 As noted in the comments for Hole#13, the tee shared with#18 needs to be rebuilt and larger. In the long run, the fairway on #18 might be reshaped as a dogleg to parallel #12 if it becomes a dogleg. • l "