HomeMy WebLinkAbout2017-09-19; City Council; ; Presentation on the City Hall Funding Analysis memorandum dated February 16 2017Sept. 19, 2017 Item #1 Page 1 of 5
CITY COUNCIL
Staff Report
Meeting Date
To:
From:
Staff Contact:
September 19, 2017
Mayor and City Council
Kevin Crawford, City Manager
Curtis M. Jackson, Real Estate Manager
Curtis.jackson@carlsbadca.gov or 760-434-2836
CA Review 1,vC:..
Subject Presentation on the City Hall Funding Analysis memorandum, dated
February 16, 2017.
Recommended Action
Receive a presentation on the City Hall Funding Analysis memorandum, dated February 16,
2017.
Executive Summary
City staff will provide the City Council with a presentation on the City Hall Funding Analysis
(Funding Analysis), dated February 16, 2017 (Exhibit 1). The Funding Analysis was completed in
support of the City Council's goal of developing a plan for a new city hall that will meet the
future workplace and operational needs of the city and the community.
Discussion
In January of 2016 and February of 2017, the city conducted City Council goal setting
workshops. At these workshops, the City Council established a goal to develop a plan for a new
city hall that will be a point of pride for residents while greatly improving efficiency and
effectiveness by centralizing an employee base that is currently spread throughout many city
facilities. One of the initial steps in realizing this goal included the completion of a Funding
Analysis.
The Funding Analysis was completed with the assistance of outside legal counsel, real estate
advisors, and city real estate, attorney's office, and finance staff. The Funding Analysis provides
an overview of existing funding sources, allowed use of funds, and an estimation of the amount
of funds expected to be available for the planning and construction of a new city hall.
The Funding Analysis also provides initial construction cost estimates for a new city hall with an
assumed size of 120,000 square feet of office and meeting space. The construction cost
estimates are based on staff research of numerous recently constructed southern California city
halls, and include parking costs, soft costs, and contingency costs, but do not include land costs.
Finally, the Funding Analysis also includes an initial discussion on four city-owned sites that
could potentially accommodate a new city hall: 1) the existing city hall site on Carlsbad Village
Drive; 2) the Farmers property at El Camino Real and Faraday Avenue; 3) Pine Avenue
Community Park/Senior Center site; and, 4) the Faraday Administration Center at 1635 Faraday
Avenue.
Sept. 19, 2017 Item #1 Page 2 of 5
At the City Council workshop, city staff will provide the City Council with a comprehensive ' presentation on the City Hall Funding Analysis and will answer any questions the City Council
may have.
Fiscal Analysis
There is no anticipated fiscal impact associated with the presentation of the City Hall Funding
Analysis.
Next Steps
City staff will be recommending that the City Council authorize the release of a Request for
Proposals (RFP) for scoping and space planning analysis, to be utilized in the development of a
concept and plan for a new city hall.
Environmental Evaluation (CEQA)
This presentation on the City Hall Funding Analysis memorandum is categorically exempt from
the California Environmental Quality Act pursuant to CEQA Guidelines section 15306
(information collection).
Exhibits
1. City Hall Funding Analysis memorandum, dated February 16, 2017.
Exhibit 1
Sept. 19, 2017 Item #1 Page 3 of 5
Memorandum
February 16, 2017
To the members of the:
CITY COUNCIL /
ACM .Ji_ CA __iL'.'CC _v_
Date '11i.·l11 City Manager~
{city of
Carlsbad
To: Mayor and City Council Members . -·
From: ~ary T. Barberio, Assistant City Manager and Curtis M. Jackson, Real Estate Manager
Via: Kevin Crawford, City Manage~
Re: City Hall Funding Analysis
The City Council has an established goal to develop a plan for a new city hall that will be a point of pride
for residents while greatly improving efficiency and effectiveness by centralizing an employee base that
is currently spread throughout many city facilities. One of the strategies in the City Coundl adopted work
plan for achieving this goal includes the completion of a City Hall Funding Analysis.
Over the past six months, with the assistance of outside legal counsel, real estate advisors, and city finance
staff, a draft funding source, allowed use, and expected availability of funds analysis for a new city hall
has been conducted.
City Hall Funding Analysis
·,
Community Facility District No. 1 (CFD No. 1) -Background: Funding for a new city hall would come
primarily, although not exclusively, through CFD No. 1 funds. ,CFD No. 1 was established in 1991 to finance
ce.rtain specifically identified public capital facilities located throughout the City, among these was a City
Hall complex. To date, most all of the e_ublic facilities identified in CFD No. 1 have been constructed except
for the City Hall complex, a Public Works office and warehouse facility, the expansion of the Cole library,
and the construction of Veterans Park.
CFD No. 1 funds cannot be used to pay for civic facilities or services outside those mentioned above. CFD
No. 1 funds are not considered "general fund" dollars and are not subject to Prop H spending limitation
restrictions. There is no sunset or deadline by which CFD No. 1 funds must be used; however, if they are
not spent on the identjfied public facilities, the city is required to return these funds back to the pa.rties
who paid them.
Current and Expected CFD No. 1 Fund Balance: The City currently has approximately $30,000,000 in CFD
No. 1 funds specifically allocated for the development of a new city hall, and anticipates collecting up to
$20,000,000 in additional funds that could be added to the current budget for a new city hall through the
city's build-out, for a total of $50,000,000.
Additionally, in 2002 the city acquired the Farmers Property as a possible location for a new city hall utilizing
$15,730,000 in CFD No. 1 funds. If the city determines that the Farmers Property will not be the location
for a new city hall, the city is required to sell the property and deposit the realized funds back into the CFD
No. 1 fund. Our current (December.2016) real estate evaluation estimate is that the city could realize
\between $25,206,000 and $35,473,000 through the sale of the Farmers Property. The sale of the Farmers
Property would ·bring the total amount of CFD No. 1 funds available for the construction of a new city hall
to between $75,206,000 and $85,474,000.
Sept. 19, 2017 Item #1 Page 4 of 5
Public Facility Fee -Background: In 1979, the City Council established a Public Facilities Fee {PFF} which
requires developers to pay the PFF prior to issuance of a building permit. All PFF funds collected must be
used only for acquiring, building, improving, expanding or equipping public property and public
improvements and facilities. PFF funds are not considered "general fund" dollars and are not subject to
Prop H spending limitation restrictions and use of these funds is generally more flexible than the use of CFO
No. 1 funds.
Current city Real Estate assets purchased utilizing PFF funds include the Faraday Center and Las Palrnas
properties. The Faraday Center was acquired in 2001 for $9,100,000. Our current {August 2016} real estate
evaluation estimate is that the Faraday Center property is valued at between $9,800,050 and $17,798,950.
The Las Palmas property was acquired in 1987 for $1,602,160, and is currently leased to Mira Costa
Community College through 2020. Our current {April 2016} real estate evaluation estimate is that the Las
Palmas property is valued at between $2,899,142 and $7,772,391.
Unlike the Farmers Property, if the city selects a new city hall location that does-not involve the Faraday
Center or Las Palmas properties, the city would not be required to sell these properties as they were
purchased with PFF funds which are less restrictive than CFO No. 1 funds. However, if the city were to sell
the Faraday Center . and the Las Palmas properties, the city could realize between $12,699,192 and
$25,571,341, and, given the flexibility allowed with PFF funds, these funds could be made available towards
the construction of a new city hall. Alternatively, the city could elect jo lease the Faraday Center and the
Las Palmas properties and the lease revenue generated could also be made available for the construction
of a new city hall or utilized for general fund purposes.
If the city elected to combine the funds realized through the sale of the Faraday Center and the Las Palm as
properties together with the total estimated CFO No. 1 funds available for a new city hall project, the
resulting total funds available would be between $62,699,192 and $75,571,341, and, when combined with
potential funds from the sale ofthe Farmers Property, between $87,905,192 and $111,044,341.
Estimated City Hall Building Square Footage and Acreage Needed
Currently the majority of the city's administrative staff is located at the current City Hall {16,500 SF
building} and Faraday Center {68,000 SF building} properties. Ideally, the city would develop a city hall to
house all administrative staff, a new Council Chamber and community meeting spaces, and potentially
some additional commercially leasable space that would also be available for future municipal expansion.
It is estimated that the aforementioned new city hall would require approximately 120,000 square feet of
office and meeting space. Based on staff research of numerous recently constructed southern California
city halls, the current market estimates indicate the cost to develop a new city hall is between $320 and
$570 per square foot {range is directly influenced by design} including building and site const ruction. As
such, a 120,000 square foot city hall would cost between $38,400,000 and $68,400,000, plus an addit ional
40% for soft and contingency costs, for a total project cost of $53,760,000 to $95,760,000
Given the 120,000 square foot size estimate of a new city hall building, it is estimated that a new city hall
of that size would need to be located on 3 to 5 acres if the project included a structured parking garage,
and 5 to 8 acres if parking requirements were met by surface parking only. Total required parking spaces
tor a new 120,000 square foot city hall are estimated to be 480 parking spaces. If a parking structure is
required for a new 120,000 square foot city hall, each structured parking space is estimated to cost
$37,000, or $17,760,000 for 480 parking spaces. The parking structure cost would be in addition to t he
Sept. 19, 2017 Item #1 Page 5 of 5
above mentioned total project cost, for a revised estimated development budget between $71,520,000
to 113,520,000.
Potential City-owned New City Hall Locations
Existing City Hall Location: The current City Hall property is 11.09 acres in size and includes the Cole
Library building and the existing 16,500 square foot city hall buildings. If the existing City Hall propeFty
was selected as the site for a new city hall, the 11.09 acres would be more than sufficient to accommodate
both a new 120,000 square foot city hall and the expansion and rebuild of the Cole Library utilizing either
surface or structured parking, or a combination thereof. If the current City Hall property was chosen, the
City would have the opportunity to create a more cohesive and unique "civic center" campus around the
existing and future Cole Library, and adjacency to the Village and freeway. If the city elects to not use this
location, the current City Hall portion of the property is valued conservatively at $20,465,000.
Additionally, the city could potentially lease the property for an estimated $1,637,200 per year and utilize
the revenue stream as determined by the City Council.
Farmers Property: The Farmers Property is 13.51 acres in size and consists of three separate parcels, one
of which is a 5.1 acre vacant parcel. The Farmers Property is currently developed with a 128,846 square
foot, three-story office building on a 6.95 acre parcel and a 6,100 square foot single story office building
(Bio, Tech & Beyond incubator) on a 1.46 acre parcel. If the Farmers Property was selected as the site for
a new city hall, the 13.51 acres would be more than sufficient to accommodate a new 120,000 square foot
city hall utilizing either surface or.structured parking. Estimated costs (February 2016) to remodel the
existing 128,846 square foot building to a basic but functional city hall is $23,910,178, and the cost to
demolish the existing buildings is $1,000,000 (should the city decide to build a new building at this
location). Given the current city hall size estimate, it is very likely that the 5.1 acre vacant parcel would
not be needed to accommodate a new city hall. If the land is not ·needed for a new city hall or for future
city hall expansion, the city is required to sell this 11excess" parcel and deposit ttte realized funds back into
the CFD No. 1 fund. The current (December, 2016) real estate evaluation estimate is that the city could
real.ize between $2,665,872 and $6,804J638 through the sale of the "excess" parcel at the Farmers
Property.
Pine Avenue Park Site (western parking lot): The Pine Avenue Park Site is 11.56 acres in size,· and is
developed with 46,300 square feet of buildings for the Senior Center and soon-to-be constructed
community recreation center, along with a multi-purpose field, park and picnic areas, and parking lots. It
is feasible to construct a new multi-story 120,000 square foot city hall utilizing below-ground structured
parking on the existing 2.16 acre parking lot located just west of the Senior Center. If the Pine Avenue
Park Site was selected as the locati~n for a new city hall, the city would have the opportunity to realize a
unique "civic center" campus around the existing Senior Center and new community recreation center
within the heart of the Village and Barrio neighborhoods.
Faraday Center Property-1635 Faraday Avenue: The Faraday Center property is 7.25 gross acres, but
only approximately 3.5 acres in net size. It is developed with a 68,000 square foot office building. The net
acreage of the Faraday Center Property is not large enough t<? easily accommodate additional building
square footage and parking. In order to construct 52,000 square feet of additional administrative office,
Council Chamber and community meeting space and the parking needed to support the additional square
footage at the Faraday Center location, approximately 7.8 gross acres of the undeveloped portion of the
adjacent private property to the south would need to be acquii:_ed. Combined, the two properties
comprise an estimated 8.12 net buildable acres. It is estimated that the acquisition of the needed 7.8
acres to the south would cost between $4,000,000 and $6,700,000.
Gary T. Barberio, Assistant City Manager
Curtis M. Jackson, Real Estate Manager
September 19, 2017
City Hall Goal
City Hall Goal
1. City Hall Funding Analysis
2. City Hall Scoping & Space
Planning Analysis RFP
City Hall Goal
City Hall Goal
City Hall Goal
City Hall Goal
City Hall Goal
City Hall Goal
City Hall Goal
City Hall Goal
Faraday Center
•Built in 2000; acquired in 2001; 68,000 sq. feet
•Located approximately 5 miles from City Hall
City Hall Goal
Jan. 2016 & Feb. 2017 City Council Goal Setting Workshops
–Established the following goal:
“Plan for a new City Hall that will meet
the future workplace and operational
needs of the city and the community.”
City Hall Funding Analysis
1. City Hall Funding Analysis
City Hall Funding Analysis
•Existing funding sources, allowed use of funds, estimated funds available
•Initial construction estimates –120K sq ft
•Initial discussion on 4 city-owned sites
•Completed in Feb. 2017
–Outside legal counsel, real estate advisors
–City real estate, Attorney’s office, Finance staff
City Hall Funding Analysis
•Main funding sources
–Community Facility District No. 1 (CFD No. 1)
–Public Facility Fee (PFF)
City Hall Funding Analysis
•CFD No. 1
–Established in 1991
–Levied on taxable properties within the district
–To finance specifically identified public facilities throughout the city
•CFD No. 1 facilities remaining to be constructed include:
–Public Works Operations Center
–Rebuild/expansion of Cole Library
–Veterans Park
–City Hall complex
City Hall Funding Analysis
•CFD No. 1 funds:
–Cannot pay for facilities not specifically in CFD No. 1
–Funds are not considered “general funds” dollars
–Funds are not subject to Prop H spending limitations
–No sunset by which funds must be used
–But, if not spent, city must return funds to those
parties that paid them
City Hall Funding Analysis
•Current and future CFD No. 1 funds:
–Current City Hall CFD No. 1 funding $30,000,000
–Additional City Hall CFD No. 1 funding expected; $20,000,000
Total $50,000,000
City Hall Funding Analysis
•Property purchased with CFD No. 1 funds:
–Farmer’s property
•Purchased in 2002 as a possible location for city hall
•Purchased for $15,730,000
City Hall Funding Analysis
City Hall Funding Analysis
•If it is determined that Farmer’s property is
not location of City Hall:
–The city is required to sell the property
–With sale funds deposited into CFD No. 1 Fund
City Hall Funding Analysis
•Farmer’s property current valuation (Dec. 2016):
$25,206,000 to $35,473,000
•When combined with current and future CFD No. 1 Funds:
$75,206,000 to $85,473,000
City Hall Funding Analysis
•Public Facility Fee Fund (PFF)
–Established in 1979
–Paid prior to issuance of building permits
–For acquiring, building, improving, expanding and equipping public property and public improvements and facilities
–Not considered “general fund” dollars
–Not subject to Prop H spending limitations
–Use of funds is generally more flexible than CFD No. 1 Funds
City Hall Funding Analysis
•PFF funds used to purchase:
–Las Palmas property in 1987 for $1,602,160
•Current valuation (Apr. 2016):$2,899,142 to
$7,772,391
–Faraday Center in 2001 for $9,100,000
•Current valuation (Dec. 2016):$9,800,050 to
$17,798,950
City Hall Funding Analysis
-Not required to sell Las Palmas or Faraday Center properties
•Can lease or sell
•Revenue can generally be used for any legally authorized
purpose
City Hall Funding Analysis
•Current CFD No. 1 funding $30,000,000
•Additional CFD No. 1 funding;$20,000,000
$50,000,000
•Farmer’s, Las Palmas, & Faraday sold:$37,905,192 to $61,044,341
•Total CFD No. 1 & PFF funds:Total $87,905,192 to $111,044,341
City Hall Funding Analysis
•120,000 sq. ft. new city hall
–$320 -$570 / sq. ft. + 40% for soft, contingency costs
–$17,760,000 for structured parking
•$53,760,000 to $113,520,000 total cost
-requires 480 parking spaces
-3 to 5 acres with structured parking
-5 to 8 acres with surface parking
City Hall Funding Analysis
Existing City Hall
City Hall Funding Analysis
•Existing City Hall location
–11.09 acres
–Current City Hall, Cole Library, Fire Station No. 1,
Elmwood House, community gardens, Parks
Maintenance
–“civic center” opportunity
–I-5 & Village & Barrio adjacency
City Hall Funding Analysis
Farmer’s Property
City Hall Funding Analysis
•Farmer’s property
–13.51 acres; 5.1 acres vacant
–128,846 sq ft 3-story office
–6,100 sq ft office 1-story office
–Sized for “civic center” opportunity
–Geographic “center” of the city
City Hall Funding Analysis
Pine Park/Senior’s Center
City Hall Funding Analysis
•Pine Ave Park/Senior Center (western parking lot)
–11.56 acres
–46,300 sq. ft. Senior Center
–Community Recreation Center (under construction)
–Multi-purpose field, picnic areas, ornamental & community
gardens (under construction)
–“civic center” opportunity
–Village & Barrio neighborhoods
–Would require below-grade structured parking
City Hall Funding Analysis
Faraday Center
City Hall Funding Analysis
•Faraday Center property
–7.25 acres gross; 3.5 acres net
–68,000 sq ft 2-story office
–More centrally located in city than existing city hall
–Existing property size may be a challenge for a “civic
center”
City Hall Funding Analysis
Questions?
Scoping & Space Planning Analysis RFP
2. City Hall Scoping & Space
Planning Analysis RFP
Scoping & Space Planning Analysis RFP
•Today’s Request:
–Adopt a Resolution authorizing the release
of a Request for Proposals for city hall
scoping and space planning analysis
services.
Scoping & Space Planning Analysis RFP
•Engage the services of a qualified multi-disciplinary team
•3 Deliverables:
–Space Planning Analysis
–Site Criteria
–Conceptual Site Planning & Architectural Massing
•Public Input
Scoping & Space Planning Analysis RFP
•Space Planning Analysis
–Business operations assessment
–Trends and forecasts
–Work force projections
–Study recent & equivalent city halls/civic centers
–Council chamber and meeting space needs
–Parking analysis
–Space needs, adjacency study, efficiency analysis
•Summary & recommendations report
Scoping & Space Planning Analysis RFP
•Site Criteria
–Spatial efficiency
–Ability to respond to unforeseen changes
–Accommodate city hall, as part of a larger civic center
–Opportunities for placemaking, community gathering, and
civic engagement
–Ease of access for all users
–Synergistic opportunities
–Opportunity costs
•Site Selection Criteria and Evaluation of four city sites
Scoping & Space Planning Analysis RFP
•Conceptual Site Planning & Architectural Massing
–Block plans depict locations of departments
–Rough volume & architectural massing
–Parking
–Conceptual site plans (city hall & civic center)
–Construction cost estimates
•Summary Report with site recommendation
Scoping & Space Planning Analysis RFP
•Public Input
–Public drafts of all deliverables will be presented
to the City Council for review and discussion
–Additional public input as directed during and/or
after completion of the technical analysis
Scoping & Space Planning Analysis RFP
•Recommendation
–Adopt a Resolution authorizing the release
of a Request for Proposals for city hall
scoping and space planning analysis
services.
Scoping & Space Planning Analysis RFP
Questions?