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HomeMy WebLinkAboutItem A: City Hall Complex PlngEUGENE CITY COUNCIL AGENDA ITEM SUMMARY Work Session: City Hall/Police Building Priority Issue Action Plan Meeting Date: May 23, 2005 Agenda Item Number: A Department: Central Services Staff Contact: Jim Carlson www. cl. eugene, or. us Contact Telephone Number: 682-5010 ISSUE STATEMENT The purpose of this work session is to review the proposed work plan for addressing the City Hall/Police Building priority issue. Resolution of the discussion on replacement of City Hall was identified by the council as one of eight priority issues. The council is asked to approve or modify the proposed action plan. Specific elements of the action plan that require City Council policy or budgetary action would be brought to the council as separate items under each work plan. BACKGROUND In February, the City Council met to develop strategic priorities for the community. Out of that session emerged eight priority issues. The priority issues and executive leads for each issue are: 1. Launch neighborhood initiative - Public Works 2. Conclude discussion on City Hall/Police Building - Assistant City Manager 3. Facilitate the development of a hospital in Eugene's central core - City Manager 4. Complete and consider Police Department reviews and implement appropriate changes - Police Department 5. Push arts and outdoors as a theme for Eugene - Planning and Development Department 6. Re-staff Fire station #9 - Fire and Emergency Services 7. Develop City Council position on racial issues - Human Resources and Risk Services 8. Develop a strategy to help the homeless in Eugene - Library, Recreation and Cultural Services Department The expectation from the council was that the City Manager would develop recommended action plans for each strategic priority and return to the council sometime this summer for discussion, input, and adoption of the plans. Subsequent to the council's identification of these issues, a template was developed by the Executive Managers for use by each project team in developing specific action plans. A copy of that template is included as Attachment A. The City Hall/Police Building action plan is the first of these eight action plans to be brought to the council and is included as Attachment B. This action plan identifies the major policy issues to be addressed, the overall description of project phasing, the nature of work to be accomplished, resource needs and proposed project outcomes. While the detailed work program would be developed during the first phase of the proposed action plan, a draft work program listing the expected project elements is included as Attachment C. An overall timeline for this action plan is included in Attachment D. L:\CMO\2005 Council Agendas\M050525\S050525A. doc RELATED CITY POLICIES Specific policies related to each priority issue will be addressed in specific action plans. The City Hall/Police Building action plan identifies ten key issues that must be addressed as the action plan moves forward. CO[INCIL OPTIONS The council is asked to provide direction on the City Hall/Police Building action plan. The council may approve or modify the proposed action plan. Approval or modification of the action plan would give staff direction to continue implementing the action plan. The council could also direct no additional work be done on an action plan, effectively putting this priority issue "on hold." If the council's action is to proceed with the proposed or a modified action plan, the City Manager will request City Council approval of up to $30,000 to implement Phase 1 of the City Hall/Police Building action plan as a separate motion. The council has the option of directing the City Manager to proceed with implementing the first element of the action plan and returning to the council with a supplemental budget request, changing the amount of funds to be committed to this first element, or taking no action at this time. CITY MANAGER'S RECOMMENDATION The City Manager recommends that the council approve the proposed City Hall/Police Building action plan. The City Manager also recommends that the council approve implementing Phase 1 of the action plan and direct the City Manager to request on a supplemental budget up to $30,000 from the Facility Replacement Reserve to implement Phase 1 of the action plan. S[IGGESTED MOTION There are potentially two motions for council action: 1. Move to approve the proposed City Hall/Police Building action plan. If this motion is adopted: 2. Move to approve implementing Phase One of the action plan and direct the City Manager to request on a Supplemental Budget up to $30,000 from the Facility Replacement Reserve to implement Phase One of the action plan. ATTACHMENTS A. Priority Issue Action Plan Template B. City Hall/Police Building Action Plan C. City Hall/Police Building Detailed Work Program D. City Hall/Police Building Action Plan Timeline FOR MORE INFORMATION Staff Contact: Jim Carlson, Assistant City Manager Telephone: 682-5010 Staff E-Mail: j ames.r.carlson~ci.eugene.or.us L:\CMO\2005 Council Agendas\M050525\S050525A. doc ATTACHMENT A Council Priority Issues Action Plan Template The following information will help each priority issue team prepare their action plan. This is a set of guidelines which can be tailored to meet the context of the priority issue, understanding that the magnitude of the priorities vary widely. Try to stay as close to the outline as possible because one if the desired outcomes of the overall process is that the action plans all have a similar look when presented to the City Council. A. Planning Horizon and Focus Use a 3-5 year horizon for identifying what the priority issue action plan will accomplish. Focus on the first 18-24 months as the first phase of the action plan. Use the material brain- stormed by the Council as a starting point for framing the action plan. That material will be provided at your team meeting. B. Priority Issue Outcomes Specifically identify a set of proposed outcomes for the priority issue. You may decide to identify an overall set of outcomes for the 3-5 year period or you may elect to divide out- comes into two sets, one for the 3-5 year period and a second set for the first 18-24 months. C. Progress to Date In this section you should identify all work that has already been accomplished on this prior- ity issue over the last few years. Connect these accomplishments to the stated outcomes. Also identify any work currently in progress or identified in department planning documents that connects to any of the outcomes. D. Action Plan The action plan should have three components: 1. Action Steps and Tasks - Given the time horizons and progress to date, identify spe- cific action steps and associated tasks designed to reach the stated outcomes of the priority issue. 2. Responsible Staff - Identify names of staff responsible for coordinating the work of each action step. 3. Timeline - Estimate a timeline for each objective to include major milestones. E. Resource Needs Identify approximate resource needs. In addition to an estimation of staff time, consider con- sulting fees, temporary help, materials and supplies, etc. F. Monitoring and Evaluation Identify steps you will take to monitor progress on action plan. Include a method for evalu- ating the impact of the plan on the proposed outcomes. ATTACHMENT B City Hall/Police Building Action Plan At the February 2005 retreat of the Eugene City Council, concluding the discussion related to City Hall and a new Police Building was identified as a council priority issue. This discussion has centered on the questions of whether to renovate or replace the existing City Hall including when, where, and how a new Police Building should be constructed. A 3-5 year horizon is used to identify what the action plan will accomplish with particular focus on the first 18 months. A. Planning Horizon and Focus Concluding the City Hall/Police Building discussion will require a four-phased approach: 1. Policy Advisement Phase. This will be a relatively brief phase in which the City Council pro- vides direction on a number of policy level issues related to this priority item with resolution of as many issues as possible at the front end of the process. The Policy Advisement phase should be complete within approximately 6 months including the consultant selection proc- ess. 2. Development Plan Phase. This phase will include the technical work and public input re- quired to generate an overall Development Plan. This is also the phase in which the remain- ing policy issues from phase one will be resolved. The Development Plan phase should focus on decision making and be complete within about 18 months to coincide with the current council biennium. 3. Implementation Plan Phase. This phase will identify the specific steps required to implement the Development Plan. The Implementation Plan phase should focus on priority action items such as timing, financing, property acquisition, and procurement methods. This phase should be complete within 2½-3 years in order to allow the option of a bond measure on the ballot during the November 2008 general election. 4. Design and Construction Phase. The ultimate goal of the action plan is to provide sustainable facilities downtown that meet the City's environmental, economic, and social needs both now and well into the future. The City Hall/Police Building Action plan will be considered a suc- cess if the City has begun the design and construction of a new and/or renovated City Hall Complex--including the Police component--within 5 years. B. Priority Issue Outcomes The proposed outcomes for the City Hall/Police Building issue fall into four timeframes coinciding with the four phases identified above. Phase ! The Policy Advisement Phase would provide direction on the following questions: 1. Should City Hall be renovated and enlarged or replaced? 2. Where should City Hall and the Police Building be located? 3. How will the development of City Hall and the Police Building reinforce the goals in the Downtown Plan? a. Follow the adopted Downtown Plan? b. Amend the Downtown Plan? 4. What level of City service consolidation should be planned for? a. One building or several proximate buildings? b. Include the City functions located in the Public Works Building, Eugene Hotel, Atrium Building, etc.? 5. What planning horizon should be used for determining the space needs for the new facilities? a. Ten years? b. Twenty years? c. More? 6. What co-location opportunities should be considered or pursued? a. Victims service agencies and/or other non-profits? b. EWEB, LCOG, 4J, and/or other governmental agencies? c. Tenant space for food and beverage provider(s)? d. Housing? 7. What is the general financing plan? a. What financing options should be considered? b. What is the target date for putting a bond measure on the ballot? c. What is the back-up plan ifa bond measure fails? 8. What level of environmental sustainability is appropriate? a. Leadership in Energy and Environmental DesignTM (LEED) Silver or higher? b. How much of a first-cost premium is acceptable? 9. How should parking be addressed? a. Should there be dedicated public parking (visitors and/or staff)? b. Should more secure parking be provided for City vehicles? c. How should Police vehicle parking be addressed? Structured parking on a smaller site? Surface parking on a larger site? 10. What will be the impact on adjacent properties? a. Public? b. Private? Some of these policy issues may need to be carried over to the Development Plan phase so the techni- cal work and/or public input generated during the second phase of the action plan can be factored in to the policy discussions. Phase 2 The proposed outcome for the second phase of the action is council adoption of a Development Plan that resolves all the policy level issues and includes a conceptual design scheme that indicates the general massing of the building(s), orientation and access, parking, open space, etc. It is important that the Development Plan phase of the action plan be completed by December 2006 while all current council members are still in office. Because of the magnitude and complexity of the City Hall/Police Building issue, carrying over the policy level discussion to a council with even one or two new mem- bers could result in repeated discussions of the relevant policy issues and decision points. Phase 3 The third phase of the action plan will result in council adoption of an Implementation Plan that establishes when and how the Development Plan will be carried out. As stated above, the Imple- mentation Plan will include specific information about timing, phasing, financing, and project delivery methods. Additional design development will need to be completed during this phase in order to provide the detailed information required to finalize the Implementation Plan. This phase should be complete by December 2007 in order to allow the option of a bond measure on the ballot during the November 2008 general election. The Implementation Plan should also include an option that does not require passage of a bond measure in 2008. Phase 4 The proposed outcome for the fourth and final phase of the action plan will be to complete the design and construction of the City Hall Complex, including the Police component. The action plan will be a ringing success if construction has begun within five years. Completion of the City Hall Complex will take some number of years depending on phasing, timing, and the success of financing efforts. C. Progress to Date The expansion or replacement of City Hall has been a major project for the council since 1999, when council was presented with the possibility of selling City Hall to the Federal government as a site for the new Federal Courthouse. In 2001, council adopted a policy statement that called for the replace- ment of City Hall with one or more new buildings by 2010. At that same time, council also adopted a policy to reduce the level of reinvestment in City Hall and the Public Works Building to provide for an expected 8 to 10 years of remaining use. On September 19, 2001, council addressed near-term and long-term projects that were required to achieve the goal of replacing City Hall. Council directed that relocation of EPD personnel from the basement of City Hall and relocation of Fire Station # 1 should be the first priority projects in the Downtown Space Plan. (The 9-1-1 Center had previously been relocated from City Hall to a new building at the 2nd and Chambers Emergency Services Complex.) The construction of a new Police Building and City Hall were the next project priorities, with design for the Police Building originally projected to begin in FY05, and a replacement of City Hall was targeted to begin design in FY08. Over the past several years, council has been setting aside funds to pay for this project. As of the FY06 budget, it is anticipated that there will be over $25 million in the Facility Reserve for this pur- pose. On July 26, 2004, council placed a $6.79 million bond measure to fund civic center elements related to a Community Safety Building on the November 2004 ballot. The measure was to fund social service agency space, police headquarters expansion space, improvements to the parks blocks, and improvements to make 8th Avenue a ~Great Civic Street." On November 2, 2004, voters rejected ballot measure 20-88 by a margin of 60% to 40%. Since November, 2004, council has been considering initiation of a City Hall Master Plan process to develop a strategy for addressing both the Police and City Hall projects in a single vision. D. Action Plan The action plan will have three phases that will lead to adoption by council of a City Hall Complex Implementation Plan by the end of calendar year 2007. The successful adoption of the Implementa- tion Plan will be followed by a fourth phase, the design and construction of the City Hall Complex. Phase One Policy Advisement Phase one of the action plan will begin with the selection of a consultant team through an open Re- quest for Proposals (RFQ) process. The consultant team will likely have an architectural firm in the lead role, but will need to include mechanical and electrical engineers, a landscape architect, a cost estimator, and an expert in strategic planning facilitation. The first task for the consultant team will be to review relevant background information including adopted plans, policies, committee reports and recommendations, and council action history related to City office space, Police facilities, and downtown. The consultant team will also need to meet with staff to form as complete a picture as possible of the current status of the City Hall/Police Building issue prior to meeting with council. The main task in phase one is for council to participate in a facilitated session to identify and provide direction on policy issues relevant to the City Hall/Police Building question. Council can group these policy issues according to the following three categories: 1) those issues for which council has clear agreement and is ready to provide explicit direction; 2) those issues for which council wants public input prior to making a decision; and 3) those issues for which more hard data is required before making a decision. Phase one will be complete by mid-November, if council authorizes funding for consultant services by the end of May. Phase Two Adopt a Development Plan The second phase of the action plan will begin with a master planning process that includes a signifi- cant public participation component. Starting with the results of the council strategic planning ses- sion, the consultant team will work with selected staff from across the organization to establish pro- ject requirements such as space needs, adjacency requirements, service delivery goals, sustainability goals, and urban design standards. The input from council on policy issues can then be combined with the input from staff on technical and operating issues to develop conceptual design options. The conceptual design options will then go through a round of review and comment by council, the com- munity, and City staff with the intent of generating a healthy dialogue around the issues that are im- portant to Eugene. This phase will culminate with council adoption of a Development Plan that resolves all the policy level issues and includes the preferred conceptual design scheme indicating major aspects of the City Hall Complex such as building location(s), general massing of the building(s), orientation and access, parking, open space, etc. Adoption of the Development Plan should occur prior to the council break in December 2006. The detailed work program for the first two phases will be developed in conjunction with the selected consultant team. However, a draft scope of work and proposed schedule is included as Attachment C based on reasonable assumptions for the steps required to select a consultant team, schedule a strate- gic planning session with council, develop a master plan, check in periodically with council, and build consensus in the community. The tight schedule underscores the importance of moving ahead in a timely manner in order to complete the Development Plan by December 2006. Phase Three Adopt an Implementation Plan The third phase will be to develop and adopt the City Hall Complex Implementation Plan. This will entail refinement of the conceptual design produced during the Development Plan phase into sche- matic design options with enough detail for the consultant team to generate accurate project cost estimates. The conceptual design options can then go through another round of review and comment by council, the community, and City staff. This phase will conclude with council adoption of an Implementation Plan that includes specific information about timing, phasing, financing, and project delivery methods. The Implementation Plan should be adopted by the December 2007 in order to leave plenty of time for consensus building around the issue of a possible bond measure during the November 2008 gen- eral election. Development options that do not include passage of a general obligation bond in 2008 should also be considered. Adoption of a development plan should lead to an appropriation of fund- ing for the first phase of construction for the City Hall Complex as well as direction on next steps for any future phase(s). Phase Four Design and Construction of the City Hall Complex After the development plan is approved by council and funding is appropriated for the first phase of construction, the City would initiate a selection process for the design team that would complete the design of the City Hall Complex, prepare construction documents, and track the construction process. Ideally, the project will be under construction by the middle of calendar year 2010. The staff team for the first three phases of the action plan consists of Jim Carlson as the lead Execu- tive Manager, Mike Penwell as the project lead, and a committee consisting of members from Facility Management, Finance, Planning and Development, Public Works, Municipal Court, and Police as well as the City's Public Information Officer. Many other staff members from across the City organi- zation will be tapped for their expertise in specific areas and to provide input to the consultant team during programming and design review. The appropriate staff team for design and construction will be assembled at the beginning of phase four and would presumably include some of the same com- mittee members that participated in the first three phases. E. Resource Needs The total cost of fully resolving the City Hall/Police Building issue will likely exceed $100 million including design and construction costs for almost any of the possible scenarios for the City Hall Complex. However, the funds will be allocated and spent incrementally with multiple opportunities for monitoring and evaluation by City staff, the council, and the public. A rough estimate of costs by component is as follows: 1. Phase One - Policy Advisement a. Select consultant team b. Conduct a facilitated session with council to identify and provide direction on policy issues: $30,000 c. Adopt initial policy direction 2. Phase Two - Adopt the City Hall Complex Development Plan a. Complete the master planning and public participation process: $300,000 - $400,000 b. Adopt the Development Plan 3. Phase Three - Adopt the City Hall Complex Implementation Plan a. Complete schematic design and implementation options: $250,000 - $350,000 b. Adopt the Implementation Plan 4. Phase Four - Design and Construction of the City Hall Complex: $100,000,000+ The majority of the costs related to completion of both the Implementation Plan and the Development Plan are consultant fees. A portion of project staff time will be charged to the project as Professional Service Fees (PSF), reflecting the City's policy of recovering capital project-related staff costs through charges to projects. Other staff time is already included in departmental budgets, but allo- cating resources to this action plan may reduce time available for other ongoing departmental work programs. The costs for materials, supplies, and consultant reimbursable expenses should be a rela- tively small percentage of total project costs. As a point of comparison, the consultant contract for EWEB's current planning process is just under $800,000 for a scope of work roughly equivalent to phases one through three described above. F. Monitoring and Evaluation This action plan is focused on specific outcomes in the form of initial policy advisement, a completed City Hall Complex Development Plan, a completed City Hall Complex Implementation Plan, and design and construction of facilities to carry out the Implementation Plan. A detailed work program and time line for Phase One and Two of the action plan has been developed, and will be updated during execution of Phase One. Progress on Phase One and Two will be monitored through the detailed work program and timelines. Council approval of each project phase will be the primary measure of success in meeting proposed outcomes for the first three phases, with authorization to ini- tiate construction projects indicating the measure of success for Phase Four. Ultimately, the action plan will be considered a resounding success if construction has begun within five years on at least the initial phase of the City Hall/Police Building. ATTACHMENT C CITY HALL/POLICE BUILDING COUNCIL ACTION ITEM Preliminary Task List and Schedule Phases One and Two May 25, 2005 · Council approval of the City Hall~Police Building Action Plan* · Council authorization to fund $30, O00for consultant services to prepare for, conduct, and sum- marize a facilitated work session with council for the purpose of identifying and providing direc- tion on policy issues relevant to the City Hall~police Building question May 25 - end of June 2005 · Prepare a Request for Proposals for City Hall/Police Building strategic planning with an option to proceed with the City Hall Complex master planning and public participation process dependent on council approval of continued funding. July 2005 · RFP period for consultants to submit proposals for the master planning and public participation process August 2005 · Evaluate proposals, interview short list, and select consultant · Negotiate fee and prepare initial contract with consultant October - Mid-November 2005 · Consultant team to review background material and meet with staffto get an overview of pertinent issues · Council strategic issues work session, facilitated by consultant team, to identify andprioritize policy and/or strategic issues · Council receives a summary documenting strategic issues work session and resultingpolicy direction · End of Phase One Mid-November 2005 - Mid-March 2006 · Council to authorize funding for consultant services and expenses to complete the master plan- ning and public participation process · Consultant team to develop program document including space needs assessments and overall pro- ject goals · Consultant team to develop several basic conceptual design options for review by staff, council, and the public · Consultant team and staff team to finalize details for the public participation process · Council work session to review conceptual design options, cost estimates, and range offinancing options prior to public participation process Mid-March - May 2006 · Consultant team to facilitate a public participation process for review and comment on conceptual design options and project goals · Public participation to include at a minimum: open houses and/or workshops with Neighborhood Associations; at least one workshop open to the general public; briefings/workshops with identified stakeholder groups such as the Chamber of Commerce, Friends of Eugene, Downtown Eugene, Inc., and the local chapter of the American Institute of Architects; possible use of focus group(s) to elicit input from unrepresented or under-represented individuals or groups · Consultant team and staff team to prepare a report documenting input from the public participation process · Council worl~ session to review input from public participation process andprovide direction on remaining policy issues for use in refinement of the Development Plan June - Mid-July 2006 · Consultant team and staff team to complete Development Plan option(s) · Council worl~ session to review Development Plan options andprovide directionforfinal refine- ment Mid-July - September 2006 · Consultant team to facilitate a limited public participation process for review and comment on Development Plan options · Public participation to include open houses with Neighborhood Associations and at least one open house for the general public · Consultant team and staff team to prepare a summary documenting input from the public participa- tion process · Council worl~ session to reviewfinal Development Plan recommendations October - December 2006 · Additional worl~ session(s), if necessary, to adopt the City Hall Complex Development Plan · End of Phase Two *Note: tasl~s in bold and italics are points at which council will provide input to the process Council provides I November 2008 Council approves Council approves Phase 1 Policy Phase 2 Development Plan Phase 3 Implementation Plan