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HomeMy WebLinkAboutItem A: City Council Priority Issue - City Hall Complex EUGENE CITY COUNCIL AGENDA ITEM SUMMARY ~ Work Session: City Council Priority Issue - City Hall Complex Meeting Date: February 14, 2007 Department: Central Services www.eugene-or.gov Agenda Item Number: A Staff Contact: Mike Penwell Contact Telephone Number: 682-5547 ISSUE STATEMENT The purpose of this work session is to request City Council direction to commence Phase 3-the Implementation Plan Phase-of the City Hall Complex Action Plan. BACKGROUND On May 25,2005, the council approved the City Hall/Police Building Action Plan (subsequently re- named the City Hall Complex Action Plan) which 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 associated with the City Hall Complex. On October 19, 2005, the council participated in a workshop facilitated by Thomas Hacker Architects to identify and provide direction on policy issues relevant to the City Hall Complex and identify overall project values for use throughout the project. At the November 23,2005 work session, the council adopted nine project values and four position statements related to the City Hall Complex Master Plan marking the completion of Phase I-the Policy Advisement Phase. Throughout the 2006 calendar year, the council made decisions to resolve the major policy issues related to the City Hall Master Plan, completing the intended goals of Phase 2-the Development Plan Phase. See Attachment A for a summary of council action history for Phase 2 of the City Hall Complex Action Plan. The next step in the action plan is the Implementation Plan Phase. The anticipated scope of work per the Request for Proposals is: "To identify the specific steps required to implement the Development Plan. This will entail refinement of the conceptual design from the Development Plan into schematic design options with enough detail for the consultant team to generate accurate project cost estimates. The schematic design options will then go through another round of review and comment by council, then community, and City staff. This phase will conclude with council adoption of an Implementation Plan that includes specific information about timing, phasing, financing, property acquisition, and project delivery methods." As in Phase 2, the approach for Phase 3 is a combination of technical work and public involvement activities designed to inform and assist the council's decision-making process. To ensure that the schematic design work needed in this phase is performed on a site that is able to be secured by the City, two sub-phases are proposed within the Implementation Plan Phase: . Phase 3A (approximately February - August/September 2007): focusing on property acquisition, police facility planning, public involvement, phasing and finance options, expanded concept design with escalated cost models, an eco-charrette, and bond measure feasibility work. . Phase 3B (approximately September 2007 - March/April 2008): focusing on the development of detailed schematic design options, a more informed cost estimate, continued LICMOl2007 Council Agendas1M0702141S070214A.doc public involvement, and continued financing and bond measure strategy work. Additional police facility design work and financing options could be developed in this phase as well, either under the current consultant contract or with a consultant selected through a separate Request for Proposal process. While the Police Patrol functions will be accommodated in a separate facility from City Hall, a Patrol Facility planning study is proposed for inclusion in Phase 3A, including site analysis and selection, concept design options sufficient for site suitability and cost modeling, and obtaining public input on the Patrol Facility site selection. Because the work in Phase 3B will be defined by the results of Phase 3A, the fees and scope of work proposed are for Phase 3A only. Unlike the menu of technical services and associated fees proposed in Phase 2, the proposed approach for Phase 3A is planned as an integrated effort, sequenced appropriately such that early efforts inform latter efforts. It is recommended that all scope items be performed to efficiently and effectively prepare for the work of schematic design in Phase 3B. A summary of the scope of services and costs for Phase 3 A are listed below. See Attachment B, Implementation Plan Phase 3A Scope, for a detailed description of the scope efforts. As noted in Attachment B, City staff will be completing a number of tasks related to property acquisition in Phase 3A that are independent of the consultant team efforts. Estimated costs for these tasks are listed below as Associated City Expenses. See Attachment C, Phase 3A Schedule, for the proposed sequence of scope efforts as well as proposed timeframes for City Council meetings and community forums. Phase 3A Technical Tasks Cost . Finance Option Support $17,000 . Phasing Options $108,000 . Bond Measure Strategy Work $135,000 . Police Patrol Facility Planning $82,000 . Expanded Concept Design $144,000 . Eco-Charrette $33,000 Public Involvement Tasks . Community Forums (2) $76,000 . Ward-based Advisory Meetings (3) $22,000 . Other Public Outreach and coordination $128,000 Meetings . Council Workshops and Work Sessions (4) $90,000 Sub-Total of Phase 3A Services $835,000 Reimbursable Expenses $35,000 Project Management (City) $60,000 Associated City Expenses $20,000 Contingency (5%) $50,000 Total Phase 3A Costs $1,000,000 LICMOl2007 Council Agendas1M0702141S070214A.doc The work in Phase 3A is intended to do the following: produce a specific concept design and project budget in preparation for schematic design; identify a site, concept layouts, and cost modeling for a Police Patrol facility; provide a robust public involvement process; identify phasing and financing options; and compile research regarding public support including a potential bond measure. As part oflast month's Supplemental Budget, the council appropriated $1,000,000 for costs related to the City Hall Complex Master Plan. RELATED CITY POLICIES The City Hall Complex master planning and public participation process relates to the council goals of an effective, accountable municipal government, a safe community, and sustainable community growth and change. COUNCIL OPTIONS The council has two options for proceeding to the Implementation Plan Phase of the City Hall Complex Action Plan: 1. Direct the City Manager to: proceed with Phase 3A of the Implementation Plan Phase of the City Hall Complex Action Plan. 2. Direct the City Manager to return with additional information related to the Implementation Plan Phase for consideration by the council at a future work session. CITY MANAGER'S RECOMMENDATION The City Manager recommends Option #1, proceeding with Phase 3A of the Implementation Plan Phase of the City Hall Complex Action Plan. SUGGESTED MOTION Move to direct the City Manager to proceed with Phase 3A ofImplementation Plan Phase of the City Hall Complex Action Plan. ATTACHMENTS A. Phase 2 Council Action History B. Phase 3A Scope Description C. Phase 3A Schedule D. City Hall Complex Action Plan FOR MORE INFORMATION Staff Contact: Mike Penwell Telephone: 682-5547 Staff E-Mail: michae1.j.penwell@ci.eugene.or.us LICMOl2007 Council Agendas1M0702141S070214A.doc ATTACHMENT A City Hall Complex Master Plan Council Action History On May 25, 2005, the council approved the City Hall/Police Building Action Plan (subsequently renamed the City Hall Complex Action Plan) which 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 associated with the City Hall Complex Master Plan. On October 19,2005, a consultant team led by Thomas Hacker Architects facilitated a council workshop for the purpose of identifying and providing direction on policy issues relevant to the City Hall Complex. Based on pre-workshop interviews with the mayor and council, six project values were presented by the consultant team to which three additional project values were pro- posed by council members during the workshop. In addition, eight key issues and five sub- issues emerged from pre-workshop interviews with the mayor and council, and were presented during the workshop. At the November 23, 2005 work session, the council adopted the following project values to serve as a basis for future decision making: 1. Exercise fiscal responsibility 2. Produce government efficiency 3. Be user-friendly 4. Embody environmental stewardship 5. Enhance downtown 6. Inspire civic pride 7. Maximize use of City Hall public spaces by the public and access to government and its representatives 8. Strive for simplicity 9. Plan for the future In addition, position statements on the four issues with the highest degree of consensus were adopted as follows: 1. Incorporate meaningful sustainable design goals. 2. Utilize a long-term planning horizon of 25 years. 3. Consolidate City services to the greatest practical extent. 4. Develop the project in consideration of the Downtown Plan while not limiting location choices to 8th Avenue. At the December 14, 2005 work session, the council directed the City Manager to proceed with phase 2-the Development Plan Phase-of the City Hall Complex Action Plan for $1,135,000. This phase includes the technical work and public input required to generate an overall develop- ment plan for the City Hall Complex. This phase will also resolve the remaining policy issues from phase 1 and result in a concept plan for the City Hall Complex. On March 8, 2006, the consultant team facilitated a council workshop marking the beginning of the Development Plan Phase of this project. The purpose of the workshop was to discuss pre- liminary space needs assumptions, facility implications relative to police service delivery options, proposed site evaluation criteria, and emerging issues from citizen interviews, as well as to preview the first Community Forum. Results from this workshop provided the basis for the Forum. At the April 26, 2006 work session, the council adopted three different Police consolidation options for use in ongoing planning efforts related to the City Hall Complex: Option B that con- solidates all Police functions with the rest of City Hall on a single site; Option C that consoli- dates all Police functions except patrol with the rest of City Hall and provides for a separate patrol facility nearby; and Option D that consolidates all Police functions except patrol with the rest of City Hall and provides for a separate patrol facility in a more remote location outside the downtown area. On May 10, 2006, the consultant team facilitated a council workshop that introduced the City Hall Space Requirements Program, presented Renovate, Hybrid, and New options for City Hall, and previewed the second Community Forum which took place on May 25,2006. Results from this workshop provided the basis for the Forum. At the July 19,2006 work session, the council adopted new construction as the preferred option for future planning and design of the City Hall Complex rather than renovating the existing city hall building or doing a hybrid of renovation and new construction. This action reflected a majority of support at the Community Forum for construction of a new City Hall. On August 9, 2006, the consultant team facilitated a council workshop to discuss and refine the site evaluation criteria for potential sites related to a new City Hall Complex and then apply the criteria to specific sites. The consultant team also received direction from the council on elicit- ing public input during the third Community Forum held on August 24,2006. Results from this workshop provided the basis for the Forum. At the September 20, 2006 work session, the narrowed down to two the number of sites to be carried forward for use in developing concept designs for a new City Hall. The two sites selected were the existing City Hall site and the Butterfly LotlRock N Rodeo sites. This action reflected a majority of support for these two sites at the Community Forum, while also acknowl- edging that a third preferred site-the former Sears-might be a viable site if development plans for that site do not move forward. On October 18, 2006, the consultant team facilitated a council workshop to introduce to the council principles of architectural design and urban planning that will guide the concept design options for City Hall, discuss factors that will influence decisions about police consolidation and site, and preview the fourth and final community forum. Results from the workshop provided the basis for the Forum. At the November 20,2006 work session, the council voted to proceed with planning for a new city hall with police patrol in a separate facility. Then at the December 11, 2006 work session, the council selected the Butterfly LotlRock N Rodeo site for use in schematic design and other planning for a new city hall. This marked the completion of Phase 2, the Development Plan Phase, of the City Hall Complex Master Plan. Both of these council actions reflected the major- ity opinion from the Community Forum. THOMAS HACKER ARCHITECTS INC. MEMORANDUM Date February 2, 2007 Mike Penwell City of Eugene Facility Management Division 210 Cheshire Avenue Eugene, Oregon 97401 Sent By Project Dana Ing Crawford Eugene City Hall Complex Master Plan-Phase 3 Implementation Plan Attn. Job No. cc 0522 Jonah Cohen, File Re Implementation Plan Phase 3A Scope Description Via DUS Mail DFax 0E-Mail Other: D Approach: This memorandum describes the proposed scope of work required to complete Phase 3A of the Implementation Plan for the Eugene City Hall Complex Master Plan. Unlike the menu of technical services proposed in the Development Plan Phase 2, the proposed scope items described below are planned as an integrated group of efforts, sequenced appropriately such that early efforts inform latter efforts. It is recommended that all the scope efforts be performed to efficiently and effectively begin the work of schematic design in Phase 3B of the Implementation Plan Phase. City-Performed Tasks Property Acquisition: City Staff will research the cost and terms of acquiring properties which comprise the "Rockin' Butterfly" site, and work to secure options for those properties. It is expected that this will take up to six months. The design team does not anticipate participating in the research and negotiation efforts. If directed by council, the design team can facilitate a public discussion of how the various public properties relate to long range downtown planning through one of the two proposed forums, or through other public outreach efforts as proposed in this scope description. Finance Options: City Staff will identify current and future City funds for the project, identify financing strategies, and develop a strategic financing plan that accommodates multiple financing sizes and project configurations (e.g., funding the majority of the full 25-year consolidated project with a passing bond measure, proceeding with a reduced project without a passing bond measure, and funding multiple phases over time with a variety of financing mechanisms). City Staff will provide a Comparative Total Cost of Ownership analysis (capital, financing, and operating costs) for a new City Hall and a parallel analysis for a no-build scenario over a stated duration. 733 SW OAK STREET, PORTLAND, OREGON 97205 TELEPHONE 503.227.1254 FAX 503.227.7818 MEMORANDUM City of Eugene, City Hall Complex Master Plan Proposed Implementation Plan Phase 3A Scope Page 2 of 4 Consultant-Performed Technical Analysis Finance Options: Collaborate with City staff to assist in identifying the quantitative and qualitative costs and benefits within the Comparative Total Cost of Ownership study (building system performance, productivity and efficiency, etc.). Facilitate workshop with City Staff to explore financing and phasing options concurrently. Facilitate a public discussion of financing options, costs and benefits at Forum 2. Deliverable is graphics to illustrate the Comparative Total Cost of Ownership. Phasing Options: Study the future growth opportunities on, and within reasonable proximity to, the "Rockin' Butterfly" site at two levels: beyond the 25 year planning horizon (if the full build-out is constructed), and phased growth opportunities for a less than full build-out. For the less than full build-out, the study will explore multiple options of divisions consolidated in a new City Hall, divisions located outside of a new City Hall and where, and each option cost modeled for comparison. To inform that portion of the study, the design team will examine the feasibility and cost of relocating the Municipal Court functions (and potentially other functions) into the Federal Building on a long-term lease basis. Deliverables include conceptual renovation of available Federal Building space to inform the associated costs, illustrations of multiple phasing options and mechanisms, and cost models. Bond Measure Strategy Work: Perform a preliminary analysis of previous bond measures. Evaluate and recommend changes to the current project-related messages, electronic and graphic materials, and strategies underway to optimize their reach and delivery. Conduct qualitative and quantitative public opinion research to determine support and opposition to a variety of potential funding mechanisms and determine public tolerance of various levels of funding. Develop messages, talking points, and strategies that are research-based and thus maximize the potential for a successful ballot measure. Advise the Council on if, when, and how a bond measure should go on the ballot. The qualitative research includes two focus groups to test open-ended responses to questions, issues, and ideas that is not possible in a telephone survey. We anticipate the focus groups will delve into overall opinions of the Eugene City government and police, satisfaction with services, perspectives on taxes and public services, values behind a new civic center, opinions on the previous measures, and a basic evaluation of financing levels and mechanisms. The analysis of the focus groups will guide what messages, strategies, values and financing options get tested in the quantitative research. The quantitative research is a telephone poll to help determine whether and how a measure should go on the ballot, and where and how to target future project communication and public involvement activities. To better understand the community's beliefs and motivations by ward in addition to a city-wide community, the telephone poll sample size is N=800 for a length of approximately 20 minutes, with N=100 responses for each ward. This sample size will give sufficient ability to test messages, anticipate opposition, and develop a strategic plan to guide the project. 733 SW OAK STREET, PORTLAND, OREGON 97205 TELEPHONE 503.227.1254 FAX 503.227.7818 MEMORANDUM City of Eugene, City Hall Complex Master Plan Proposed Implementation Plan Phase 3A Scope Page 3 of 4 Final deliverables include a written report and analysis of the focus group results, a statistical analysis of the telephone polling by ward and community-wide, and a strategic plan outlining a detailed set of message recommendations and advice for passing a financing measure. Police Patrol Facility Planning: Establish site selection criteria for Police Patrol facility, identify potential sites, and analyze site suitability. When site has been selected or narrowed to two potential sites, perform concept layouts and cost model each. Prepare graphics and facilitate discussions with Council and Public. Expand awareness and involvement with public through Focus Group and Forum participation (See Public Involvement scope). Expanded Concept Design: Explore and establish one design concept for development in Schematic Design at two levels: a complete 25 year build-out, and a reduced build-out as defined by the phasing study. Identify and illustrate major green building features that shape massing, configuration, and cost. Test functionality of divisions with more developed plan layouts. Cost model selected concept design to establish project budget in preparation for schematic design. Produce two high-quality renderings. Eco-charrette: Facilitate workshop with City staff and community members with sustainable building expertise to establish priorities and goals for environmental sustainability and energy efficiency, and identify strategies to accomplish those goals. Charrette is sequenced near the beginning of the expanded concept design effort to maximize integration of green building features and develop a shared vision with decision-makers. Expand awareness and involvement with public through Focus Group and Forum participation (See Public Involvement scope). Share results of charette with Council and provide summary report. Public Involvement Process Approach: Create a fair, inclusive, and transparent public process to inform and involve the community and provide a two-way communication loop between members of the community and Council. Add value to the city's infrastructure for ongoing public involvement. Enhance some of the efforts developed during the Development Plan Phase including public forums, Neighborhood Association outreach, focus groups, and website communication. Establish a ward-based Advisory Committee to provide Council and design team perspective on multiple issues from all eight wards. Ward-Based Advisory Committee: To foster a community-inspired design, it is helpful for the design team to have access to a consistent group of community members beyond city staff that can provide insight and perspective on major project issues such as finance, phasing, police, and design. The intent is to identify two collaborative community members from each ward to participate in this committee and meet every 6-8 weeks throughout the Implementation Plan phase, including three meetings during phase 3A. Focus Groups: Obtain specialized input on three topics central to Phase 3A: sustainability, accessibility, and Police issues. Recruit community members with special expertise and credibility relative to each topic, facilitate meetings, and report results to Council. 733 SW OAK STREET, PORTLAND, OREGON 97205 TELEPHONE 503.227.1254 FAX 503.227.7818 MEMORANDUM City of Eugene, City Hall Complex Master Plan Proposed Implementation Plan Phase 3A Scope Page 4 of 4 Community Forums: Gather specific input as directed by Council. Continue to recruit citizens for community forums. Facilitate (2) 3-hour forums of 100-150 people each. Contact potential participants prior to each forum, advertise in local newspapers, and time media coverage immediately prior to forums to enhance project awareness and participation. Forum materials include presentation materials (PowerPoint and graphic boards) developed from previous work efforts, surveys and collation of survey results. Forum 1 is planned to address Police Patrol facility site options and City Hall phasing options; Forum 2 is planned to address sustainability features, concept design development, and financing. Prepare and distribute forum summaries to participants and Council. Estimated expenses include advertisements, graphics, room rental, refreshments, and mailings. Public Involvement External Communication Neighborhood Association outreach: collaborate with Neighborhood Association staff to give brief updates at every meeting as a standing part of meeting agendas. Attend and facilitate discussions at any Neighborhood Association at their request. Place project-related information in every Association newsletter as allowed by each newsletter editor. Latino and Youth outreach: perform specific outreach to Latino groups through bi- lingual informational outreach and presentations at various events such as Latino Parents' Group, Joventud Faceta, LEAD, Cinco de Mayo, We Are Bethel, and the Latino Market. Perform specific outreach to youth by working with school and community organizations to offer presentations and video tours, and creating opportunities for high school community service hours. Speakers Bureau: schedule, participate in and summarize up to (12) presentations to build project awareness in the community. Recruit participation at forums, and engage those following the project through media. Presentations are anticipated at Chamber of Commerce meetings, local Rotary Clubs, the City Club, Human Rights Commission, Planning Commission, and similar groups. Website/Comment Line: enhance existing project website to promote information sharing and create more links to other organizations' websites; upload a video tour of the existing City Hall; provide (3) updates at key decisions or milestones; continue to include a page available in Spanish; maintain telephone comment line and a TTY line. Estimated expenses include an independent website server to facilitate design team management and updates. Displays: develop (1) freestanding tri-fold display for use at community gathering spots (Library, Saturday Market, malls, etc.) with drawings and take-away fact sheets describing current work efforts and updated (2) times (fact sheets translated in Spanish). Media: continue to develop consistent media exposure in print, TV, and radio including (4) visits to local editorial boards, (3) articles for community publications, (8) radio interviews and (4) television appearances. 733 SW OAK STREET, PORTLAND, OREGON 97205 TELEPHONE 503.227.1254 FAX 503.227.7818 Attachment C February 2, 2007 Eugene City Hall Complex Master Plan Au ust 517/2217/29~5 8 ~ TJUIY 716/24Tml7/8 11. I June 315/2015/2716/3 16 TAPrTI ~ 813/25 T4til 4/8 14/1514/2214/291 5/6 15 March 8Jg[25 I 3/4 3/1113 ~ 9 218 016 .... .... .... ~,,'\\. ""~ ... ~~"""~ ~""""~ ~""""~ I Februarv /2Jtl1/4 12/1112 Project Schedule Implementation Plan Phase 3A Finish Star Duration Task Name 10 Mon 8/6/07 Mon 2/26/07 6 days Technical Tasks Fri 5/25/07 Mon 2/26/07 65 days Finance Options Suppor 2 Fri 5/18/07 Mon 3/5/07 55 days Phasing Options 3 Mon 4/16/07 Tue 3/27/07 15 days Bond Measure Focus Groups 4 Fri 6/29/07 Mon 4/16/07 55 days ity Planning Fac Police Patro 5 Mon 8/6/07 Mon 5/7/07 66 days Design Expanded Concept 6 Fri 4/20/07 Mon 4/9/07 2 wks Eco-c harrette 7 Fri 5/25/07 Mon 4/30/07 20 days ing Bond Measure Po 8 9 Fri 8/17/07 Mon 3/5/07 20 days Public Involvement 10 Fri 8/17/07 Mon 3/5/07 20 days Electronic Outreach & Media 11 Fri 8/10/07 Mon 3/12/07 11 0 days Neighborhood Association Outreach 2 Fri 7/6/07 Mon 3/19/07 80 days Latino and Youth Outreach 13 Fri 3/30/07 Mon 3/12/07 3 wks Advisory Committee Mtg 4 Fri 5/18/07 Mon 4/30/07 3 wks Advisory Committee Mtg 2 15 Fri 7/6/07 Mon 6/18/07 3 wks Advisory Committee Mtg 3 16 Fri 4/20/07 Mon 4/16/07 5 days Public Involvement Focus Groups 7 Wed 5/9/07 Thu 4/19/07 3 wks Forum 18 Wed 7/11/07 Fri 8/10/07 Thu 6/21/07 Mon 3/26/07 3 wks 00 days Forum 2 Meetings Counci 19 20 21 Fri 4/13/07 Mon 3/26/07 3 wks Police Sites, Phasing, Finane Workshop 22 Fri 5/25/07 Mon 5/7/07 3 wks Work Session 23 Fri 6/29/07 Mon 6/11/07 3 wks Design, Be Expanded Concept Workshop 2 24 Fri 8/10/07 Mon 7/23/07 3 wks Work Session 2 25 External Tasks + lestone M Task Thomas Hacker Architects + ~ lestone External M ine Dead .... ~ Page .... ~ Summary Project Summary Spl Progress Project: ECH 3A Project Schedule Date: Tue 2/6/07 ATTACHMENT D City Hall Complex Action Plan At the February 2005 retreat of the Eugene City Council, concluding the discussion related to City Hall and a new [or renovated] 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 [incorporated]. 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 212-3 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 Complex Action plan will be considered a success 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 1 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 if a bond measure fails? 8. What level of environmental sustainability is appropriate? a. Leadership in Energy and Environmental Design™ (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 A 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.