HomeMy WebLinkAboutItem B: Use of Facility Reserve - Next Steps on Police Patrol Facility
ECC
UGENE ITY OUNCIL
AIS
GENDA TEM UMMARY
Work Session: Use of Facility Reserve - Next Steps on Police Patrol Facility
Meeting Date: February 11, 2009 Agenda Item Number: B
Department: Central Services Staff Contact: Mike Penwell
www.eugene-or.gov Contact Telephone Number: 682-5547
ISSUE STATEMENT
The purpose of this work session is to establish policy direction for using a portion of the Facility
Reserve for the design and construction of a Police Patrol Facility as the next step in addressing
the deficiencies of the existing Eugene City Hall.
BACKGROUND
2009 marks ten years that the council has actively addressed the issue of expansion or replace-
ment of the Eugene City Hall. In 1999, the Council Committee on City Hall Alternatives was
formed to consider—and ultimately reject—the possibility of selling City Hall to the Federal
government as a site for the new Federal Courthouse. In 2001, council adopted a policy state-
ment that called for the replacement 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, assuming an expected 8 to 10 years of remaining use.
A number of projects have been undertaken as part of the Downtown Space Plan to achieve the
goal of replacing City Hall:
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Prior to the official start of the Downtown Space Plan, the 9-1-1 Center was relocated
from City Hall to a new building at the 2nd and Chambers Emergency Services Complex.
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In September 2001, the 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.
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The new Police property and forensics building was completed in 2004.
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The new Downtown Fire Station, which was funded with General Obligation bonds
approved by voters in May of 2002, was occupied in 2005.
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 targeted to begin design in FY08. See Attachment A for the history of council action on the
Downtown Space Plan.
Also in 2001, the Facility Reserve was created as a mechanism for partially funding the goals of
the Downtown Space Plan. See Attachment C for a history of the Facility Reserve including
major deposits into and major expenditures from this reserve fund.
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In February 2005, the council established eight strategic priorities for the community, one of
which was to “conclude the discussion on the City Hall/Police Building.” Subsequently, on May
25, 2005, the council approved the City Hall Complex Action Plan which identified 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.
The first three phases of this action plan became the City Hall Complex Master Plan, a planning
process that spanned 2½ years and produced various policy directions from the council as well as
specific next step recommendations from the City Hall Complex design team. See Attachment B
for the history of council action on the City Hall Complex Master Plan. Also visit the project
website, http://www.eugenecityhall.com/, for detailed information related to the City Hall Com-
plex Master Plan including:
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Phase 1 Report (http://www.eugenecityhall.com/pdf/ECH_phase_one_report.pdf)
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Phase 2 Report Executive Summary
(http://www.eugenecityhall.com/pdf/ech_phase_two_Executive_summary.pdf)
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Phase 3 Report Executive Summary
(http://www.eugenecityhall.com/pdf/ech_phase_3_Executive_summary.pdf)
The master plan resulted in a vision for a new City Hall reflective of the values and priorities of
Eugene, and a flexible design that allows for incrementally moving forward when the City is
ready and funding is available. In the meantime, the number one recommendation from the City
Hall Complex design team was to build the Police Patrol Facility, completing the relocation of
all primary emergency response functions out of City Hall and into Essential Facility structures.
At the October 17, 2007, council work session, the direction was to proceed with development of
a Patrol Facility concept design for a portion of the existing LTD RideSource site on Garfield
Street and continue to explore the acquisition of potential sites in the immediate area. This site
preference recognized certain operational efficiencies that could be realized by locating the
Patrol Facility close to the gas pumps at Fleet Maintenance and close to the Police Services
Building where the Forensics Evidence and Property Control Units are located.
Since that time, certain advantages have been identified with locating the Patrol Facility in or
near downtown including the potential for better response to downtown public safety issues,
better support for downtown development by the addition of a newly constructed building, and
better connection between the Police Patrol Division and the rest of the Police Department in
City Hall. Several potential sites were identified during the City Hall Complex Master Plan
process that could be analyzed further to determine the most suitable site for a Police Patrol
Facility. This analysis could be accomplished using a portion of the fund balance remaining
from the City Hall Complex Master Plan project with the results brought back to the council at a
later date.
The Police Patrol Facility is also listed as a placeholder project for $20 million in the 2010-2015
Capital Improvement Program draft approved by the Budget Committee on January 28, 2009,
with capital funding estimated to occur in 2012. The cost estimate represents a total project cost
including construction costs, soft costs, site acquisition costs, and construction cost escalation.
The cost estimate was based on work done by the City Hall Complex design team in 2008. Since
that time, construction costs have dropped somewhat reflecting both a reduction in material costs
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and a more competitive bidding environment. By using a City-owned site (thus eliminating site
acquisition costs), reducing contingencies, and eliminating two years of cost escalation, it may be
possible to reduce the cost of the Patrol Facility to approximately $16 million. Moving forward
with the project now would result in savings for the City compared to waiting until 2012, and it
would pump millions of dollars into the local economy over the next 18-24 months while sup-
porting the council goal of contributing to downtown development.
The incremental cost for ongoing operations and maintenance for the Police Patrol Facility in the
General Fund was estimated in the CIP at $235,000 annually beginning in 2013. Moving ahead
with design and construction now would require funding for operations and maintenance to
begin in the second half of FY11 or the start of FY12.
Funding for the Police Patrol Facility
Funding for a new Police Patrol Facility could come from the Facility Reserve, which was origi-
nally created to fund projects related to City Hall, with the intention of reducing the amount
asked from voters to pay for a portion of the projects. The Facility Reserve is expected to have a
balance of about $22 million in FY10, after taking into account a $1 million transfer for street
operations and maintenance projects as directed by the Budget Committee last year.
Funds remaining in the Facility Reserve could be retained for future improvements to space for
Municipal Court, emergency and necessary repairs to City Hall in keeping with the council’s
2001 policy, and related uses supporting the City Hall Master Plan. Specific appropriations for
use of the remainder of the Facility Reserve will be brought to the council and the Budget
Committee as future decisions are made on these topics.
During the FY09 budget process, the Budget Committee adopted recommendations to the coun-
cil for potential alternate uses for the Facility Reserve. The Budget Committee recommenda-
tions, included in Attachment D, diverged from previous council direction to minimize reinvest-
ment in the existing City Hall and maintain the Facility Reserve for the purpose of funding
Downtown Space Plan (i.e., City Hall Complex Master Plan) projects. The council did not take
any action on the Budget Committee recommendations. The staff recommendation is that the
council continue with the previous direction given as a result of the City Hall Complex Master
Plan discussions.
RELATED CITY POLICIES
The City Hall Complex Master Plan relates to the council values of effective, accountable
municipal government; a safe community; and sustainable development. The council identified
a continuing goal in 2007 to adopt an implementation plan for a parallel process for the con-
struction of a new City Hall and police facility. The approved City Hall Complex Action Plan
identifies key issues that must be addressed as work toward the goal progresses.
COUNCIL OPTIONS
1.The council can choose to include an appropriation of $16 million from the Facility Reserve
in the FY10 budget to fund the design and construction of a new Police Patrol Facility. The
council can also direct that existing City Hall Complex Master Plan funds be used for
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analysis of potential sites in or near downtown to determine the most suitable site for the
patrol facility.
2.The council can choose to direct other actions with regard to the Police Patrol Facility or to
prioritize other uses for the Facility Reserve.
CITY MANAGER’S RECOMMENDATION
The City Manager recommends option 1, including an appropriation of $16 million from the
Facility Reserve in the FY10 budget to fund the design and construction of a new Police Patrol
Facility as the next step in addressing the deficiencies of the existing Eugene City Hall. The City
Manager also recommends using already appropriated and unspent City Hall Complex Master
Plan funds for analysis of potential sites in or near downtown to determine the most suitable site
for the Patrol Facility.
SUGGESTED MOTIONS
A.Move to direct the City Manager to include an appropriation of $16 million from the Facility
Reserve in the FY10 budget to fund the design and construction of a Police Patrol Facility.
B.Move to direct the City Manager to use already appropriated and unspent City Hall Complex
Master Plan funds to complete an analysis of potential sites in or near downtown to deter-
mine the most suitable site for the Patrol Facility and return to the council with a final recom-
mendation on location for the Police Patrol Facility.
ATTACHMENTS
(Attachments available with 02/09/09 work session agenda materials.)
A. Council Action History on Downtown Space Plan
B. Council Action History on City Hall Complex Master Plan
C. Facility Reserve History
D. FY09 Budget Committee Recommendations for the Facility Reserve
FOR MORE INFORMATION
Staff Contact: Mike Penwell, Facility Management Division Manager (AIC)
Telephone: 682-5547
Staff E-Mail: michael.j.penwell@ci.eugene.or.us
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City Manager’s Office
City of Eugene
777 Pearl Street, Room 105
M
Eugene, Oregon 97401-2793
EMORANDUM
(541) 682-5010
(541) 682-5414 FAX
www.eugene-or.gov
Date:
February 11, 2009
To:
Mayor Piercy and City Council
From:
Jon Ruiz, City Manager
Subject:
Council Work Session – Use of Facility Reserve for the Design and Construction of a Police
Patrol Facility
This work session is a follow-up to a February 9, 2009, work session requesting council direction to use a
portion of the Facility Reserve for the design and construction of a Police Patrol Facility as the next step
in addressing the deficiencies of the existing City Hall. Councilors supported the request to continue the
work session discussion to take the time necessary to make a well informed decision for the community.
WORK SESSION SUMMARY
During the course of the work session on February 9, council members expressed the following:
Emphatic concern for the safety of everyone who accesses services and works at City
Hall due to the risk of significant damage in the event of a moderate to severe earthquake
and a sense of responsibility to take appropriate action to mitigate the problem.
Support for developing a parallel track for space planning options to address the needs of
Municipal Court, City Manager’s Office, Human Resources, and Eugene Police
Department administrative and investigative services.
Desire to explore cost options for retrofitting and seismically upgrading City Hall.
The importance of prudent planning for use of limited available Facility Reserve funds.
Interest to move forward at an appropriate pace to gain community support for the
planning efforts.
Intent to use project construction to stimulate the local economy and support downtown
planning efforts.
Support for employee equity.
Desire to investigate the best site options for the patrol facility and other city services,
including the option to relocate City Hall to the EWEB administrative building site if it
becomes available.
Collectively, councilor comments reflected that the best outcomes for use of Facility Reserve funds will
include: a police facility located downtown that meets essential service seismic requirements; a facility
that meets ‘life safety’ seismic requirements for city services located at City Hall; appropriate space for
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the Municipal Court; new construction that reflects council’s goal for sustainable buildings and services;
and enhanced customer service for the public.
OPTIONS
While the vision developed for the City Hall Complex Master Plan is both inspirational and aspirational,
the realization of that vision has always depended on the passage of a sizeable bond measure. Because
passage of a City Hall bond measure is unlikely in the foreseeable future, two “Plan B” options are
presented below to address the significant shortcomings of City Hall in the interim. The significant
difference between the two is whether or not Police remains in City Hall or moves to another location.
Option 1
Best Outcome: a police facility located downtown that meets essential service seismic requirements.
Move all of police out of City Hall – either all at once or in phases – and into a new facility meeting
essential services seismic requirements.
Best Outcome: a facility that meets ‘life safety’ seismic requirements for city services located at City
Hall.
Renovate the existing building, lease space in new or existing buildings, and/or acquire an existing
building appropriate for a portion of City offices. One such existing building may be the EWEB
administration building as it was built to a higher seismic standard than required by code at the time of its
construction in 1987-88, and EWEB has talked of eventually moving all of its operations to their site in
west Eugene. Renovating the existing City Hall could be accomplished over time and would likely be
eligible for incentives to help offset some of the costs of improvements for energy efficiency.
Best Outcome: appropriate space for the Municipal Court.
A possible option for Municipal Court is the courthouse space in the Federal Building across the street
from City Hall if the Veteran’s Administration decides to locate elsewhere. Alternatively, with Police out
of City Hall, the Court could be expanded within the existing City Hall.
Best Outcome: new construction that reflects council’s goal for sustainable buildings and services
.
A new police facility would be built to LEED standards. Bringing the current City Hall up to “life safety”
seismic requirements would not, in and of itself, meet this outcome.
Best Outcome: enhanced customer service for the public.
A new Police facility will enhance customer service because of the assured ability to respond during an
emergency, and efficiencies gained by providing adequate space. An expanded or relocated Court will
enhance services. The remaining City Hall offices will neither experience an increase or a decrease in
service as a result of upgrading “life safety” seismic requirements.
Option 2
Best Outcome: a police facility located downtown that meets essential service seismic requirements.
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Keep all of Police in the existing City Hall and retrofit to meet essential service seismic requirements.
Renovating the existing City Hall could be accomplished over time and would likely be eligible for
incentives to help offset some of the costs of improvements for energy efficiency.
Best Outcome: a facility that meets ‘life safety’ seismic requirements for city services located at City
Hall.
Move all non-police functions out of City Hall in order to meet Police’s space needs requirements. These
non-police functions could be moved into leased or purchased space in a new or existing downtown
building. Again, the EWEB administration building should be explored as a potential option.
Best Outcome: appropriate space for the Municipal Court.
The Municipal Court would need to move out of the current City Hall to allow needed expansion of
Police. A possible option for Municipal Court is the courthouse space in the Federal Building across the
street from City Hall if the Veteran’s Administration decides to locate elsewhere, or the lease or purchase
of other suitable space.
Best Outcome: new construction that reflects council’s goal for sustainable buildings and services
.
Bringing the current City Hall up to essential seismic requirements would not, in and of itself, meet this
outcome.
Best Outcome: enhanced customer service for the public.
A retrofitted City Hall to essential seismic requirements will enhance customer service because of the
assured ability to respond during an emergency, and efficiencies gained by providing adequate space. A
relocated Court to a facility with appropriate space will enhance services. The relocation of the remaining
City Hall offices may or may not enhance customer service.
RECOMMENDATION
The City Manager and staff recommend Option 1, which includes eventually moving all of Police out of
City Hall.
Phase One
Upgrade City Hall to a “life safety” level of seismic resistance and make necessary modifications
to mechanical systems. Using rough estimates prepared in 2000, a minimal seismic and
mechanical upgrade might be accomplished for as little as $4-5 million.
Move Human Resources to leased space and remodel the resulting space for use by Municipal
Court at a cost of $1.5 to $2 million, or, if feasible, lease space for the Court.
Construct a police patrol facility on an appropriate downtown site large enough to eventually
accommodate the remaining police functions in a combined police facility. The total cost of the
police patrol facility is estimated at $16-17 million based on the cost estimate prepared by the
City Hall Complex design team and verified by a general contractor working locally in the
Eugene-Springfield area (see Attachment A – Police Patrol Facility Project Cost Summary). This
nd
cost estimate was prepared for the LTD RideSource site near 2 & Garfield, and is roughly
transferable to a downtown site that would likely require less on-site parking but may require a
portion of the parking to be tucked under the building in order to preserve expansion capabilities.
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Phase 2 (5 to 10 years)
Relocate the rest of police to a combined police facility.
Completely renovate ($30 to $50 million not including inflation) or vacate City Hall.
RECOMMENDED MOTION
I move to direct the city manager:
(1) to develop a conceptual plan and estimate for (a) making seismic upgrades to city hall to meet the
life/safety standard, and (b) expanding municipal court’s space to meet the court’s needs;
(2) to use appropriated but unspent city hall complex master plan funds to complete an analysis of
potential sites owned by the city but limited to downtown, to determine the most suitable site for a Police
Facility and return to council with a final recommendation on that location;
(3) to develop a cost estimate for a phased Police Facility, rather than a Patrol Facility, with the first
phase consisting of space for the patrol function – but designed so that it can be expanded into a building
for the entire police department; and
(4) to investigate the willingness of EWEB to eventually sell its Administration Building to the City
for use as a city hall, and if there is such a willingness, undertake and bring back to council a preliminary
analysis of the pros and cons of using that building for city hall.
th
The city manager shall return to the Council with the information described above by April 15. Until the
Council makes decisions – after receiving the information described above – the city manager should not
include in his proposed budget the use of any portion of the facility reserve.
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