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08/01/1997 Recommendations MEMORANDUM CITY OF TIGARD, OREGON TO: Honorable Mayor and Council FROM: Liz Newton, Assistant to the City Administrator DATE : August 1, 1997 SUBJECT: Space Committee Recommendations Over the last several weeks, a staff committee comprised of representatives from each department has been meeting to develop options and a recommendation regarding how the City should address space needs over the next 20 years . The Space Committee reviewed existing space available, developed staffing projections, and considered possible options . Options considered by the Space Committee were based on certain assumptions . First, the committee assumed that the City will continue to grow through development and annexation. Second, City departments will exist as they are now structured. Third, the City will not provide services in satellite locations . Fourth, Tri-Met service to City Hall will not improve significantly in the 20 year period. The Space Committee also made some assumptions for purposes of estimating staffing projections and future space needs . The assumptions are that the City will participate in the WCCLS levy. The WCCLS levy will be approved in March of 1997 making funds available for Library construction. The City will take over more responsibility for providing services to unincorporated areas of Washington County. City Attorney services will be provided in- house at some point in the next 20 years . Parking standards will reduce the number of spaces allowed for vehicles; alternative modes of transportation will be encouraged. Some departments will go to some degree of double shifts to facilitate shared work space . Telecommuting will be introduced for some positions . Some City services will be contracted out . The City will begin providing more programs and services such as recreation and some social programs . EXISTING SPACE AND PARKING The review of existing space included a determination of square footage and available parking at City hall, the Water Building, the Niche, and the Engineering modular. The existing square footage for current facilities is as follows : Office Space All Space City Hall 8, 650 sq. ft . (11, 070) Water Building 6, 600 sq. ft . (8,424) Niche 2, 700 sq. ft . (3 , 100) Engineering Modular 1,400 sq. ft . (1,440) Police 8, 600 sq. ft . (9, 000) TOYS 1, 600 sq. ft . (1, 700) Library 12, 780 sq. ft . (12, 900) TOTAL 42, 330 sq. ft . (47, 634) The Maintenance Services Facilities on Ash Street were not considered for purposes of this discussion. The analysis was limited to facilities at the corner of Burnham and Hall although options considered include possible use of the Canterbury site and the TCYS building on the corner of Ash and Burnham on an interim basis . Obviously, Maintenance Services needs should be considered before a final decision is made on City-wide facility expansion and improvements over the next 20 years . Parking facilities are a major concern in any plan for facilities . The number of existing and required parking spaces by location is as follows : existing/required by Code City Hall 132/32 spaces Water Building , 64/24 spaces Niche 28/ 9 spaces Library 34/32 spaces Police 29/28 spaces Engineering (behind City Hall) 10/ 4 spaces TOTAL 297/129 Under the zoning code requirements for parking, there would appear to be adequate parking in each location. In reality however, parking at City Hall is already inadequate. There are 28 employees on the largest shift in the Police Department, 29 Police cars and 3 motorcycles that may be parked in the lot at anytime. Even though all of the Police vehicles are not necessarily in the lot at one time, a space needs to be reserved for each vehicle to accommodate any combination of vehicles in or out of the lot . A minimum of 60 spaces is needed to accommodate Police staff vehicles and reserved spots for Police vehicles . There are 29 spaces currently designated for Police use, leaving a deficit of 31 spaces . There, are 23 employees and 15 volunteers staffing the Library at any one time . As many as 70 patrons use the Library in an hour and 40 children regularly attend Story Time (our most popular 2 program) . Summer Library programs regularly attract 200 - 300 people . 108 spaces are needed to accommodate peak Library use (38 employees and volunteers and 70 patrons equals 108 . ) There are 34 spaces available in front of the Library, 74 short of the number needed for peak use. Currently there are 49 employees working daily in City Hall and the Engineering modular. On an afternoon when Court is in session there is an average of 80 people scheduled to appear at one time . In addition, there are 13 staff vehicles assigned to inspectors and others for City business . On an afternoon when Court is in session and there is a special program at the Library, the existing parking does not meet the demand. Even with Police, inspectors, and staff out on duty, the impact of the many functions is use of almost all space in some circumstances . There are 142 spaces available at City Hall not specifically designated to the Library or Police. If all employees are parked in the lot, all City vehicles are in, and all of those scheduled to appear in Court show, all of the 142 spaces available would be needed, leaving no spaces for the excess demand in Library and Police . (49 employees plus 13 staff cars plus 80 parking spaces for Court equals 142 . ) STAFFING PROJECTIONS Staffing projections for five years out are probably fairly accurate . There is less certainty in projections beyond five years . Changes in technology and programs offered by the City could have a dramatic effect on actual staffing numbers . In addition, additional shifts and telecommuting could come into play. The projections for ten years and beyond are estimates based on estimates . Two staffing projections were developed. Scenario A was based on a continuation of existing service level standards with few additional programs . Scenario B was based on the addition of Washington County staff to serve the area of interest and a slightly more enhanced level of service for new and existing programs . The tables outlining the staffing projections by department until the year 2015 are attached. As shown on the attached tables, the net square footage needed by the year 2015 under Scenario A staffing projections is 23 , 625 square feet and 28, 625 square feet under Scenario B . During the review of future options, the Space Committee considered not only available square footage by facility, but also which departments should be in close proximity to provide the best service to our citizens . Throughout this analysis, customer service was the number 1 consideration. 3 OPTIONS The Space Committee developed six options for consideration. A brief description, timing, estimated costs and funding sources are listed below. In addition, each option is evaluated against six criteria: the impact on customer service, square footage, financing, timing, parking, and impact on the voters . Option 1. Police First, Relocate and Build Library Date Description Cost Fundincr 96-97 Add 2, 844 sq. $ 300, 000 Facility Fund ft . to Police Dept . 97-98 Remodel 130, 000 Facility Fund existing interior of Police 96-97 Purchase 1, 500, 000 WCCLS Levy another site for Library 99-00 Construct 2, 300, 000 WCCLS Levy Library 2000 Renovate 260, 000 Facility Fund Library for office space 2000 Remove 10, 000 Facility Fund Engineer. Modular No changes to City Hall, the Niche or Water Building Customer Service This option maintains City departments in close proximity to each other in the long term which is important for providing good customer service. There is a possibility that some staff may be located in temporary space that may not be at the City Hall site during construction, but every effort could be made to keep staff that interact -with the public most in convenient locations . 4 Square Footage This option meets the needs for all departments except police for the 20 year period. Police needs would be met for 10 - 12 years . Financing Funds for the addition to and remodel of Police could come from the Facilities Fund set aside through 1998 . Funds to purchase a site and construct the Library would come from the WCCLS levy if approved by the voters in 1997 . Renovation of the existing Library and removal of the Engineering modular could be funded with Facilities fund money after 1998 . Should the WCCLS levy fail in 1997, the City would have an option to go out to the voters after March 1997 for a Library levy. Needed improvements to police could be made regardless . Timing This option addresses the police needs immediately. The delay in renovating the existing Library space for offices until after 2000 impacts Engineering and Community Development in particular because no additional space would be available to accommodate growth in those departments until 2000 . Should additional space be needed before 2000, staff may be temporarily relocated. Parking Moving the Library off site would alleviate much of the parking problem. The 205 spaces on the city hall site would be adequate to serve current demand. More spaces may be created with the renovation of the police and library facilities and the removal of the Engineering modular. Voter Impact Under this option, the voters would be asked to consider the Library expansion as part of the WCCLS levy in 1997 . The voters would not be asked to approve a levy for other improvements . The City would need to consider going to the voters for the Library expansion if the WCCLS levy fails in March 1997 . 5 Option 2 . Second Floor on City Hall Levy Date Description Cost Funding 97-98 Add second $1, 000, 000 Bond floor to City Hall 97-98 Add 2, 844 300, 000 Bond sq. ft . to Police Dept . 97-98 Remodel 130, 000 Bond existing interior of Police 97-98 Purchase Ash 80, 000 Facility Fund St . site for Niche 97-98 Move Niche to 40, 000 Facility Fund improve site access 97-98 Remove 10, 000 Facility Fund Engineer. Modular for parking 97 or 95 Expand and 285, 000 Facility Fund remodel Water Building 2000 Expand 3 , 800, 000 WCCLS Levy Library Customer Service This option keeps all City services at the present city hall and water building which is convenient for serving the public . There may be disruption during construction, but staff would not need to be relocated while construction is underway. 6 Square Footage Like Option 1, this option would meet the long term needs of all departments for the 20 year period except for police. This option considers expansion and renovation of the Water Building when and if needed to provide additional square footage to accommodate growth. It is estimated that this option would serve police for 10 - 12 years . Financing This option would require voter approval of a bond or levy to fund the addition of a second floor and the addition to and remodel of the Police Department . The purchase of the Ash Street site, moving the Niche, and Engineering modular and expanding and remodel of the Water Building could be funded with the Facilities Fund. Expansion of the Library would be funded with WCCLS bond if approved by the voters in March 1997 . Timing In order to add on to the City Hall and expand the Police facilities in 97-98, a request would have to go to the voters in the next year. Since the WCCLS levy is scheduled for March 1997, it may be preferable to take the City Hall expansion to the voters this November. If the request fails in November, the next available election date is March 1997. Since the request for improvements to the Library would go to the voters in March 1997, if the City Hall/Police levy passed this November but the Library levy failed next March, the City would have to decide how to fund the Library expansion. Parking This option may not alleviate the potential parking shortage . Although moving the Niche Building to improve access may provide land for additional parking, an expanded Library on the site would create an increased demand for parking that most likely would not be met . Voter Impact This option requires that the City go to the voters for approval of the expansion of City Hall and Police . In addition, the voters will consider the Library expansion as part of the county-wide WCCLS levy. 7 Option 3 . Renovate and Add Now Delaying a Levy until 1999 Date Description Cost Funding 1997 Expand and re- 285, 000 Facility Funding model Water Bldg. 1997 Add 2 , 844 sq. 300, 000 Facility ft . to Police Funding 1998 Remodel 130, 000 Facility existing Funding interior of Police 2000 Add second 1, 000, 000 Bond story to City Hall 2000 Expand Library 3 , 800, 000 WCCLS Levy on existing site 2000 Purchase Ash 80, 000 Bond St . site for Niche 2000 Move Niche for 40, 000 Bond site access and parking 2000 Remove 10, 000 Bond Engineer. modular for parking Customer Service Under this option, departments would be grouped in locations to facilitate the best customer service . For example, an expanded Water Building could house Community Development and Engineering. Police, the Library, and other administrative services could all be located at the present City Hall site . 8 Square Footage If Community Development and Engineering are located at the Water Building, it is unclear whether this option would serve the needs of these departments over the 20 year period. In addition, this option meets Police needs for 10 - 12 years . All other departments can probably be served for 20 years Financing In order to delay a request to the voters for an addition to City Hall, Facilities funds would be needed to pay for the expansion of the Water Building and the expansion and remodel of Police . However, there would not be enough to fund those improvements if the City continued to set aside $100, 000 per year as in the past two years . The purchase of the Ash Street site, moving the Niche, and removing the Engineering modular could be funded either through the levy for City Hall expansion or through the Facilities Fund. The Library improvements would be funded through the WCCLS levy if approved by the voters in March 1997, or, if the WCCLS levy is not approved, the Library improvements could be added to the request for expanding City Hall . Timing The second floor would not be needed on City Hall until 2000 so a request from the voters for funds could be delayed until 1999 . This assumes however, that Facilities funds would pay for the expansion and remodel of the Water Building and the expansion and remodel of Police. The Library WCCLS levy would be considered in March 1997 before the City' s request to add on to City Hall . Parking If Community Development and Engineering are located at the Water Building, some pressure on parking would be relieved. However, expanding the Library on the current site would place more demands on parking than could probably be met by moving the Niche and removing the Engineering modular. Voter Impact This option requires voter approval of a levy to fund expansion of the City Hall if facilities funds could pay for the expansion and remodel of the Water Building, and expansion and remodel of Police . If a levy is delayed until 1999 and the WCCLS levy is considered in 1997 and doesn' t pass, the Library improvements could be incorporated into the City' s levy request . 9 Option 4. Public Safety Building Bond Date Description Cost Fug 1997 Purchase Ash Street $ 80, 000 Facilities Fund property for Niche 1997 Move Niche to Ash Street 40, 000 Facilities Fund 1997 Remodel Water Building for 75, 000 Facilities Fund office space 97-98 Construct Police Bldg. on 1, 875, 000 Bond Niche site 97-98 Remodel existing Police 430, 000 Bond Dept . as office 1998 Remove Engineering modular 10, 000 Facilities Fund 2000 Expand Library on existing 3, 800, 000 WCCLS Levy site Customer Service This option keeps City services in close proximity and allows departments to be grouped to provide the best customer service to citizens . Square Footage This option may not provide for the long term needs of all departments . For example, there may not be a facility large enough to accommodate Engineering and Community Development in one location. This option would provide for Police Department needs for 20 - 30 years and would provide for the long term needs of the Library. Financing Funds for the purchase of the Ash Street site, moving the Niche, and remodeling the Water Building to provide more office space could come from Facilities funds available now. Voter approval would be needed for bonds to fund a new Police facility and the remodel of the existing Police facility for offices . Removal of the Engineering modular could be paid for with Facilities funds . The Library expansion would be funded through the WCCLS levy. Timing The purchase of the Ash Street site, moving the Niche, and remodeling the Water Building could be accomplished now. In order to construct a new Police facility in 97-98, the voters would have to consider a bond in the next year. A decision would need to be made regarding whether the request should go before, after, or at the same time as the WCCLS levy. Options include November 1996, March 1997 (with the WCCLS levy) or May 1997. Going to the voters in November allows time to have the matter go a second time should 10 it fail, but there is likely to be a number of other issues on the November ballot . Going in March 1997 puts the Police facility in possible competition with the WCCLS levy. Waiting to go to the voters in May of 1997 would allow an opportunity to combine the Library and Police requests should the WCCLS levy fail, but should the City' s request fail in May, the next available election date is September 1997 which would delay construction. Parking The possible parking problems may be relieved some by moving Police to the Niche site but, again, expanding the Library on the current site puts demands on parking that may not be accommodated. Voter Impact This option requires voter consideration of a -bond to fund a new Police facility either before, after, or at the same time as the WCCLS levy. Option 5 . Library Reloction, Re-Use of Present Library Date Description Cost Funding 1997 Remodel Water Building for $ 75, 000 Facility Fund office space 2000 Construct Library on 3 , 800, 000 WCCLS different site 2000 Renovate existing Library 500, 000 Bond for Police 2000 Renovate existing Police 260, 000 Bond for offices Customer Service This option retains services to citizens in convenient locations . The only service moved is the Library. Square Footage This option would serve the Library for the 20 year period. Police needs would be served for 10 - 12 years . It is possible that, depending on growth, there would not be a facility large enough to house Community Development and Engineering in one building but it is possible that those departments could both be located on the same site . Financing Money from the Facilities Fund could pay for the remodel of the Water Building now. The WCCLS levy would pay for the construction of the Library. Facilities Funds would be inadequate to pay for the renovation of the Library and Police space by 2000 if only 11 $100, 000 a year is set aside, so a bond is probably a better option. Timing The remodel of the Water Building could occur now. The Library facility would be constructed in 2000 . The renovation of the Library and Police building for offices would be delayed until after the new Library facility is completed. Parking Moving the Library to another site is . the best option for addressing the potential parking problem at the current City Hall site. In addition, remodeling the Water Building to accommodate more staff would probably also ease the parking situation at City Hall . Voter Impact This option would probably necessitate going to the voters in 1999 for the renovation to the Police and Library facilities . This would be after the WCCLS levy is considered in March 1997. Should the WCCLS levy fail in 1997, the City could include the Library project in the request to the voters in 1999 . Option 6. Move Court and Expand Police and City Hall Together Date Descrip ion Cost F n 1997 Renovate Water Building $ 15, 000 Facilities to add Court Funding 97-98 Add second floor to 1, 200, 000 Bond Police 97-98 Add second floor to City 1, 000, 000 Bond Hall 2000 Expand Library on 3, 800, 000 WCCLS Levy existing site Customer Service Under this option, Court would move to the Water building. All other City services would remain in their current locations . The close proximity of City services is beneficial for providing good customer service . Square Footage This option would probably serve all departments needs for the 20 year period. 12 Financing The existing Facilities Fund is adequate to renovate the Water Building to accommodate Court . A bond measure would be necessary to fund the additions to City Hall and Police . The Library expansion would be funded through the WCCLS levy. Timing The renovation to the Water Building to accommodate Court could occur now. In order to complete the additions to City Hall and Police in 97-98, a request would need to go to the voters within the next year. Again, a decision would have to be made about the timing of the City' s request in relation to the WCCLS request going to the voters in March 1997 . If the City' s request goes before the WCCLS levy and the WCCLS levy fails, the opportunity is lost to include the Library expansion with the City' s request . Parking This option moves Court to another site, relieving the demand on parking that occurs when Court is in session. Under this option the Library stays on the existing site and moving Court may not free up enough spaces to meet the demand of an expanded Library. In addition, there is currently not enough spaces on the Water site to accommodate parking for Court . Voter Impact To fund this option in the time frame suggested, a request for bonds to add on to City Hall and the Police department would need to go to the voters in the next year. As with all of the options, it is anticipated the Library expansion would be funded with WCCLS levy funds if approved in March 1997 . RECOMMENDATION The Space Committee recommends that Council direct staff to pursue Option 1 . This option, as presented, requires only one levy, the WCCLS levy. The other improvements can be addressed over time with Facilities funds . The parking situation is also addressed by moving the Library off site . . This option also addresses the 10 - 15 year needs of the Police Department immediately. Council should also provide direction on the purchase of the Ash Street property and the relocation of the Niche which, although not necessary under Option 1, may provide some future flexibility. is\adm\1iz\space.mem 13