Public Safety Facility Alternative Site Analysis Findings

8/3/2019 Public Safety Facility Alternative Site Analysis Findings

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FOR COUNCIL MEETING OF:AGENDA ITEM NO.:PUBLIC WORKS FILE NO.:

TO: ~ O I } f ~ D q_1Tr COUNCILT H R O U G H ~ - - ~ C J ' N ~ I s : 1 : f f M N A G E R FROM: ROBERT D. CHANDLER, PH.D., P.E.,INTERIM PUBLIC WORKS DIRECTO

December 5, 20117 (c)

SUBJECT: PUBLIC SAFETY FACILITYALTERNATIVE SITE ANALYSIS FINDINGSISSUE:To inform Council of the status of the alternative site analysis for the proposed newPublic Safety Facility.RECOMMENDATION:Information only.BACKGROUND:The Civic Center facility was constructed in 1972. Over time, government services haveoutgrown the facility. As a result, several functions are located offsite due to theexisting facility's constraints. In addition, the facility is seismically inadequate,especially with respect to standards for emergency response facilities such as thePolice Department. As the building ages, concerns have been raised about the facility'senergy efficiency and annual operating cost. In 2010, pursuing a bond measure for anew police facility was incorporated into Council goals. Another 2010 Council goalfocused on assessing and prioritizing improvements for City facilities to develop amulti-year approach to addressing public infrastructure needs.Sustainable Cities Initiative. For the 2010-11 academic year, the City of Salem wasselected by the University of Oregon to participate in its Sustainable Cities Initiative(SCI). SCI is a unique collaboration with faculty and students from a wide range ofdisciplines. For the Civic Center and Police Facility Options project, architecturestudents developed options for a new Public Safety Facility located on the Civic Centercampus. The City also hired a consultant team of professional architects to support theproject by: 1) providing an initial analysis of the site; 2) developing programmingrequirements for the new Public Safety Facility and the existing Civic Center building;3) providing professional review of the student work; and 4) synthesizing student outputinto a preferred alternative and conceptual design.Council Subcommittee Review at Key Milestones. On August 9, 2010, a Councilsubcommittee was formed to engage in the project at key milestones. Thesubcommittee includes the Mayor, Councilors Clem and Tesler, and two communitymembers currently representing the Salem Keizer Chamber of Commerce and theCommunity Policing Advisory Committee. The subcommittee met six times through


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Public Safety FacilityAlternative Site Analysis FindingsCouncil Meeting of December 5, 2011Page 2April 20, 2011, to consider whether a new Police Department facility could fit within theexisting Civic Center campus. Relying on input from the SCI students and the localdesign team, the Council subcommittee found the Police Department's needs couldfeasibly be accommodated with construction of a new facility on the Civic Centercampus. The subcommittee also agreed that it would be useful to consider alternativesites for cost comparison with the Civic Center site before proceeding with developmentof a bond measure to fund the project. The City Council approved a funding request forthe alternative site analysis on May 23, 2011.FACTS AND FINDINGS:The intent of the alternative site analysis is to develop cost estimates for three differenttypes of potential sites for the new Public Safety Facility to compare with the costsalready developed for the Civic Center site. Staff used the attached list of site selectioncriteria to develop a list of potentially available sites in Salem (Attachment 1 . TheCouncil Subcommittee met on August 8, 2011, to consider the list and selected threesites that best fit the selection criteria. The sites selected from the list were intended toserve as the best examples of particular types of sites for the new Public Safety Facility.A more detailed selection process to identify a specific site, including all necessary duediligence and owner negotiations, would be required if an alternative site is pursued.The types of sites selected for comparison to the Civic Center site were an urbanredevelopment site (Attachment 2), a bare land site (Attachment 3), and a site with anexisting building for retrofit (Attachment 4).A conceptual site plan and cost estimate for each of the three alternative sites alongwith an analysis of the more intangible benefits and difficulties associated with each oneis included in the attachments. The conceptual site plan and estimate for the CivicCenter site is also attached (Attachment 5). The Civic Center concept includes seismicupgrades to the existing Civic Center building, renovation of the existing part of thebuilding occupied by Police, and other alterations to the Civic Center campus. Forequal comparison between the sites, the $19.4 million cost of these Civic Centerimprovements was also included in the alternative site cost estimates. The City facesthis cost liability at the Civic Center site regardless of the site chosen for the PublicSafety Facility. The estimated costs for each site are as follows:

SiteUrban Redevelopment SiteBare Land SiteExisting Site Building RetrofitCivic Center Site

Cost 2011 Dollars$55,815,201$57,070,936$53,483,581$60,787,823

Cost estimates for each site include contingency and are presented in current 2011dollars for comparison. The final cost estimate for the selected site should include thebest available estimate of inflation. The primary difference between the Civic Centersite and the alternative sites is the underground parking included in the Civic Centerconcept, which costs about $9 million more than the at-grade parking made possible byJP!TLC: G:\Group\director\Judy\Council201 !\Dece mber 5\PublicSafetyFacilityAlternativeSiteAnalysis.doc


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Public Safety FacilityAlternative Site Analysis FindingsCouncil Meeting of December 5, 2011Page 3more abundant land area at the alternative sites. However, this difference is partiallyoffset by the land acquisition cost of the alternative sites, which is approximately$4 million.The Council Subcommittee met to discuss the alternative analysis findings onNovember 1, 2011. In addition to the attached information, the subcommittee alsodiscussed the additional annual operational costs that would arise from moving thePolice Department to an offsite location. Operational cost increases would includeconsiderable additional labor and fleet expenses for Police staff travelling back and forthto the Civic Center for court and meetings with other City departments. Other City staffwould also require additional travel and fleet expenses to meet with Police at their newfacility and there would be an incremental increase in facility maintenance costs for anew remote facility compared to a facility located close to other City buildings. Inaddition, acquisition of an alternative site would remove it from the property tax rolls andreduce annual property tax revenue. The subcommittee found that the increasedoperational costs and overall benefit of the central Civic Center site outweighed theincreased initial capital cost of construction. At their meeting, the subcommitteerecommended that City Council authorize proceeding with final development of the CivicCenter site concept for a future bond measure to fund the project.NEXT STEPS:A Council work session will be scheduled in January 2012 for discussion of thealternative site analysis findings. If Council subsequently authorizes continueddevelopment of the Civic Center concept for the Public Safety Facility, next steps willinclude refinement of the conceptual plan, project renderings, update of the costestimate, and development of a public information program with strategic use of publicpolling. Completion of these tasks would allow for a potential bond measure to fund theproject as soon as 2013.

Prepared by: Allen Dannen, P.E., Engineering Program ManagerAttachments:1. Alternative Site Criteria for Selection2. Urban Redevelopment Site3. Suburban Bare Land Site4. Existing Building Retrofit Site5. Civic Center SiteWards: AllNovember 22, 2011JPffLC: G:\Group\director\Judy\Counci12011\December 5\PublicSafetyFacilityAlternativeSiteAnalysis.doc


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ATIACHMENT 1

CITY OF SALEM PUBLIC SAFETY FACILITYALTERNATIVE SITE CRITERIA FOR SELECTIONCOUNCIL SUBCOMMITTEE MEETING

SITE SIZE4 TO 10 ACRES

BUILDING SIZEAPPROX. 75,000 SQUARE FEET (3 STORIES IS OPTIMUM)

PARKING NEEDSAPPROX. 210 SPACESACCOMMODATION FOR SECURE FLEET PARKING, PUBLICAND EMPLOYEES

LOCATIONGEOGRAPHY- TRAVEL TIME TO CITY HALL/COURTARTERIAL ACCESS PREFERRED

PREPARED BY

NOVEMBER 1, 2011

PUBLIC VISIBILITYEMERGENCY RESPONSEFREQUENCY/LOCATION OF CALLS FOR SERVICENEIGHBORHOOD COMPATIBILITY AND IMPACT TOEXISTING BUSINESS

OTHER CONSIDERATIONSPAST USESURBAN RENEWAL/REDEVELOPMENT POTENTIALREMOVING PROPERTY FROM THE TAX ROLLSPROPERTY UNDER STATE OWNERSHIPENVIRONMENTAL/PERMITTING ISSUES (I.E. WETLANDS)REUSE OF EXISTING BUILDINGS

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ATTACHMENT 2CITY OF SALEM PUBLIC SAFETY FACILITY[URBAN] REDEVELOPMENT SITENOVEMBER 1, 2011

SUMMARYTHE DEVELOPMENT OF A 3-STORY, 74,000-SQUARE FOOT NEW PUBLIC SAFETY FACILITY ALONG WITH ON-GRADE PARKING.THIS SITE WOULD INCLUDE THE ACQUISITION OF PRIVATE PROPERTY AND THE DEMOLITION OF EXISTING BUILDINGS.

.~ ~ PROS

ON-GRADE PARKING CONVENIENT LOCATION TO CITY HALL ALLOWS FOR OPTIMUM SIZE AND SHAPE GOOD SITE ACCESS

CONS TAKES PROPERTY OFF TAX ROLL DISPLACES EXISTING BUSINESS DEMOLITION COST MULTIPLE SITE ACQUISITION COST HIGHER POTENTIAL FOR HAZARDOUS

MATERIAL ABATEMENT

: .............................................................................

PREPARED BY

COSTSCONSTRUCTION COSTS TOTAL $46,552,912MARGIN & ADJUSTMENTS (INCLUDED IN TABLE)GENERAL CONDITIONSBONDS & INSURANCESOVERHEAD & PROFITPROJECT CONTINGENCYSOFT COSTS

10.0%2.5%5.0%

12.0%

ARCHITECTURAL/ENGINEERING FEES 10.0%CITY PROJECT MANAGEMENT COST 2.0%PERMIT FEES (ESTIMATED LUMP SUM) $250,000TESTING AND INSPECTION FEES $400,000FIXTURES, FURNISHINGS, AND EQUIPMENT 5.0%BOND ISSUANCE EXPENSE 1.5%SOFT COSTS TOTAL $9,262,289PROJECT TOTAL $55,815,201(SEE COST BREAKDOWN TABLE ON REVERSE SIDE.)ADJUSTED ESCALATION TO 3Q 2015 COULD BE 8% TO 12%($4,465,000 TO $6,698,000)

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[URBAN] REDEVELOPMENT SITE

s ~ c o EBVD,(JI?y,(JCCf::: 100' 200' 300'sss -- proposed property lines

PROJECT GROSS SF COST/SF TOTALA POLICE HEADQUARTERSA1 ON-G (188 SPACES) 85,250 $16 $1,364,000A2 3-STORY NEW BUILDING 74,000 $278 $20,572,000A3 1-STORY SALLY PORT & OVERSIZED VHCL. PARKING 7,500 $135 $1,012,5008 SITE WORK

81 DEMOLITION 66,850 $16 $1,069,60082 SITE IMPROVEMENTS (ON-SITE AND OFF-SITE) 49,084 $38 $1,865,192

C1 PURCHASE PRICE (APPROX. 3.6 ACRES) $4,350,000D CITY HALL UPGRADESD1 SEISMIC UPGRADES (OCCUPANCY CATEGORY 3) $4,637,620D2 PARKING STRUCTURE SEISMIC UPGRADES $2,428,000D3 DEMO COUNCIL CHAMBERS AND ATRIUM ROOF 24,500 $40 $980,000D4 BASEMENT TENANT IMPROVEMENT 27,000 $33 $891,000D5 FIRST FLOOR TENANT IMPROVEMENT 35,000 $173 $6,055,000

(AT CIVIC CENTER SITE)

PROJECT TOTAL $55,815,201


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ATTACHMENT 3CITY llF SALEM PUBLIC SAFETY FACILITY[SUBURBAN] BARE LAND SITENOVEMBER 1, 2011

SUMMARYTHE DEVELOPMENT OF A 2-STORY 74,000 SQUARE FOOT NEW PUBLIC SAFETY FACILITY ALONG WITH ON-GRADE PARKING.THIS SITE WOULD INCLUDE THE ACQUISITION OF PRIVATE PROPERTY.

PROS SIMPLEST CONSTRUCTION ON-GRADE PARKING LEAST LIKELY TO NEED ENVIRONMENTAL

HAZARD MITIGATION POTENTIAL TO COMBINE WITH

OTHER DEVELOPMENTS

CONS TAKES PROPERTY OFF TAX ROLL REMOTE FROM CITY HALL SERVICES

AND OTHER CITY DEPARTMENTS NOT CENTRALLY LOCATED IN CITY SITE ACQUISITION

. ................................................................................

~ ~ ~ : ~ ~ ~ ~ ~ ~ ~ . ~ ~ ' : ~ : : .............................................................................

PREPARED BY

COSTSCONSTRUCTION COSTS TOTAL $47,612,604MARGIN & ADJUSTMENTS (INCLUDED IN TABLE)GENERAL CONDITIONSBONDS & INSURANCESOVERHEAD & PROFITPROJECT CONTINGENCYSOFT COSTSARCHITECTURAL/ENGINEERING FEESCITY PROJECT MANAGEMENT COSTPERMIT FEES (ESTIMATED LUMP SUM)TESTING AND INSPECTION FEES

10.0%2.5%5.0%

12.0%

10.0%2.0%

$250,000$400,000

FIXTURES, FURNISHINGS, AND EQUIPMENT 5.0%BOND ISSUANCE EXPENSE 1.5%SOFT COSTS TOTAL $9,458,332PROJECT TOTAL $57,070,936(SEE COST BREAKDOWN TABLE ON REVERSE SIDE.)ADJUSTED ESCALATION TO 3Q 2015 COULD BE 8% TO 12%($4,566,000 TO $6,849,000)

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PROJECT GROSS SF COST/SF TOTALA POLICE HEADQUARTERS

PARKING (308 SPACES) 114,394 $16 $1,830,304A2 2-STORY NEW BUILDING 74,000 $278 $20,572,000A3 1-STORY SALLY PORT & OVERSIZED VEHICLE PKNG. 7,500 $135 $1,012,500B SITEWORK

81 DEMOLITION82 SITE IMPROVEMENTS (ON-SITE AND OFF-SITE) 127,606 $30 $3,828,180

NC1 PURCHASE PRICE (APPROX. 14 ACRES) $4,050,000D CITY .HALL UPGRADESD1 SEISMIC UPGRADES (OCCUPANCY CATEGORY 3) $4,637,620D2 PARKING STRUCTURE SEISMIC UPGRADES $2,428,000D3 DEMO COUNCIL CHAMBERS AND ATRIUM ROOF 24,500 $40 $980,000D4 BASEMENT TENANT IMPROVEMENT 27,000 $33 $891,000D5 FIRST FLOOR TENANT IMPROVEMENT 35,000 $173 $6,055,000

CHAMBERS (AT CIVIC CENTER SITE)

CONSTRUCTION TOTAL $47,612,604SOFT COSTS $9,458,332



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ATTACHMENT 4CITY OF SALEM PUBLIC SAFETY FACILITYEXISTING BUILDING SITENOVEMBER 1, 2011

SUMMARYTHE DEVELOPMENT OF A TWO-STORY ADDITION OF 44,000 SQUARE FEET TO AN EXISTING ONE-STORY 30,000-SQUARE FOOTBUILDING. THE DEVELOPMENT WOULD ALSO INCLUDE ON-GRADE PARKING. THIS SITE WOULD INCLUDE THE ACQUISITIONOF MULTIPLE PROPERTIES AND POSSIBLE DEMOLITION OF SMALLER BUILDINGS.

PROS ON-GRADE PARKING GOOD SITE ACCESS MAKES USE OF VACANT

EXISTING BUILDING

CONS TAKES PROPERTY OFF TAX ROLL

QUESTIONABLE EXISTING BUILDING(RETROFIT VS. DEMO/NEWCONSTRUCTION)

DISPLACES EXISTING BUSINESSES POOR LOCATION RELATIVE TO CITY HALL COMPLEX SITE ACQUISITION HIGHER POTENTIAL FOR HAZARDOUS

MATERIAL ABATEMENT

PROPOSED PARKING:ON-GRADETOTAL

PREPARED BY

210210


10.0%2.5%5.0%

12.0%

ARCHITECTURAL/ENGINEERING FEES 10.0%CITY PROJECT MANAGEMENTCOST 2.0%PERMIT FEES (ESTIMATED LUMP SUM) $250,000TESTING AND INSPECTION FEES $400,000FIXTURES, FURNISHINGS, AND EQUIPMENT 5.0%BOND ISSUANCE EXPENSE 1.5%SOFT COSTS TOTAL $8,898,281PROJECT TOTAL $53,483,581(SEE COST BREAKDOWN TABLE ON REVERSE SIDE.)ADJUSTED ESCALATION TO 3Q 2015 COULD BE 8% TO 12%($4,279,000 TO $6,418,000)

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E&100' 200' 300'

MNN p...cct.SS s\Rt.f"l _.._ proposed property linesPROJECT GROSS SF COST/SF TOTAL

A POLICE HEADQUARTERS

A2 NEW BUILDING 44,000 $278 $12,232,000A3 EXISTING BUILDING RENOVATION 30,000 $238 7,140,000A4 1-STORY SALLY PORT & OVERSIZED VEHICLE PKNG. 7,500 $135 1,012,500881 DEMOLITION 40,000 $16 $640,00082 SITE IMPROVEMENTS (ON-SITE AND OFF-SITE) 42,340 $42 $1,820,620cC1 PURCHASE PRICE (APPROX. 4 ACRES) $4,050,000D HALL UPGRADESD1 SEISMIC UPGRADES (OCCUPANCY CATEGORY 3) $4,637,620D2 PARKING STRUCTURE SEISMIC UPGRADES $2.428,000D3 DEMO COUNCIL CHAMBERS AND ATRIUM ROOF 24,500 $40 $980,000D4 BASEMENT TENANT IMPROVEMENT 27,000 $33 $891,000D5 FIRST FLOOR TENANT IMPROVEMENT 35,000 $173 $6,055,000

CONSTRUCTION TOTAL $44,585,300SOFT COSTS $8,898,281



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ATTACHMENT 5

CITY OF SALEM PUBLIC SAFETY FACILITYCIVIC CENTER SITENOVEMBER 1, 2011

SUMMARYTHE DEVELOPMENT OF A 3-STORY, 74,000 SQUARE FOOT NEW PUBLIC SAFETY FACILITY ALONG WITH A 2-STORYUNDERGROUND PARKING GARAGE. THIS WOULD INCLUDE THE REMOVAL OF THE EXISTING CITY HALL CANOPY, C OUNCILCHAMBERS, AN D EXISTING PARKING STRUCTURE.

PROS ALLOWS FOR OPTIMUM SIZE AND SHAPE ABILITY TO MITIGATE EXISTING CIVIC

CENTER INFRASTRUCTURE COSTS MAINTAINS PROXIMITY TO

OTHER CITY DEPARTMENTS CITY OWNS LAND; DOESN'T REMOVE

PARCELS FROM CURRENT TAX ROLL MAINTAINS CENTRAL SALEM LOCATION MAXIMIZES USE OF EXISTINGCITY PROPERTY

CONS INCREASED COSTS ASSOCIATED

WITH UNDERGROUND PARKINGTO MEET PARKING NEED

PROPOSED PARKING:UNDERGROUND POLICE (A1) 255ON-GRADETOTAL(NET GAIN OF 108 STALLS)

PREPARED BY

102357


10.0%2.5%5.0%

12.0%

ARCHITECTURAL/ENGINEERING FEES 10.0%CITY PROJECT MANAGEMENT COSTPERMIT FEES (ESTIMATED LUMP SUM)TESTING AN D INSPECTION FEES

2.0%$250,000$400,000

FIXTURES, FURNISHINGS, AN D EQUIPMENT 5.0%BOND ISSUANCE EXPENSE 1.5%SOFT COSTS TOTAL $10,038,605PROJECT TOTAL $60,787,823

(SEE COST BREAKD OWN TABLE ON REVERSE SIDE.)ADJUSTED ESCALATION TO 3Q 2015 COULD BE 8% TO 12%($4,863,000 TO $7,295,000)

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CIVIC CENTER SITE

100' 200' 300'

PROJECT GROSS SF COST/SF TOTALA POLICE HEADQUARTERSA1 BASEMENT PARKING 101,000 $114 $11,514,000(255 SPACES, 4 OVERSIZED, SALLY PORT)A2 ABOVE GRADE BUILDING 74,000 $278 $20,572,0008 .SITEWORK81 DEMOLITION ($980K CCIATRIUM+ $1.65M PARKING) $2,630,00082 SITE IMPROVEMENTS $3,121,598D CITYH.ALL UPGRADESD1 SEISMIC UPGRADES (OCCUPANCY CATEGORY 3) $4,637,620D2 BASEMENTTENANTIMPROVEMENT 27,000 $33 $891,000D3 FIRST FLOOR TENANT IMPROVEMENT 35,000 $173 $6,055,000

c i j ~ M 8 E R 5

$50,749,218$10,038,605


Public Safety Facility Alternative Site Analysis Findings

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