SR-850-005-01 (23)
Item 8A
City Council Meeting: March 25, 2003
SUPPLEMENTAL STAFF REPORT
TO: Mayor and City Council
FROM: City Staff
SUBJECT: Supplemental Information Regarding Capital Project Diversions to Fund
the Main Library Project .
Introduction
This staff report provides additional information regarding the diversion of funds from
capital projects to the Main Library project.
BackQround
The City received federal Hazard Mitigation Grant funds to seismically retrofit several
municipal buildings, including the Main Library, following the Northridge earthquake.
The funds by themselves were not enough to complete the retrofit projects. In October
2000, the City requested that the Federal Emergency Management Agency (FEMA) and
Governor's Office of Emergency Services (OES) allow the City to use these grant funds
on the construction of the Public Safety Facility, which would be built to significantly
reduce seismic risk in the event of an earthquake. The agencies agreed, and the City
committed to seismically retrofit the other facilities with its own funds as soon as
reasonably possible.
1
In 2002, the City issued bonds on the Public Safety Facility and included the amount
diverted from the retrofit of various City facilities so that those facilities could then be
retrofit as originally intended. (FEMA funding did not constitute the full cost of retrofit of
any of the facilities).
Discussion
Of the amount reserved for seismic retrofit projects, $940,00 originally was designated
for the Main Library, which was to be renovated rather than rebuilt. Similar to the
Public Safety Facility, the new Main Library will be built to current building code
standards and seismically reinforced to reduce risk in the event of an earthquake.
Following discussions this week with OES regarding the Library retrofit funding, staff
recommends that these funds be transferred to the Main Library project budget, and
capital funds previously diverted to the Main Library project be reinstated. The
remainder of the list of diverted funds - $20,509,803 - are still required to fund the Main
Library project.
Council could choose to reinstate three projects: Phase 2 of the restroom replacement
project ($520,000), Euclid Park ($250,000), and the Sign Replacement Program
($150,000), leaving $20,000 in the Main Library project toward contingency, for a total
of $940,000.
With the reinstatement, Phase 2 of the restroom and park building replacement
program can be completed within the next two years. The condition of aged park
2
restrooms has been a community dissatisfier for years. Restoration of funds for Euclid
Park will permit construction of the project along with leveraging of grant funds. The
reinstatement of the sign replacement program funds would allow for fabrication of more
newly designed signs. Other projects on the list require significantly more funds, may
ultimately be funded by other sources, or are undefined in scope, and may not be as
well suited for reinstatement.
BudQet/Financiallmpact
Council approved the transfer of funds from the original list of capital projects to the
Main Library Project in January 2003. The transfer has been effected to allow the Main
Library project to proceed,
To proceed, Council must cancel $940,000 in appropriations at account
C01 0491 03.589000 and re-appropriate $940,000 to the projects selected, and transfer
$940,000 in Hazard Mitigation capital funds (C01204000.589000) to the Main Library
Expansion Project (C01 0491 03.589000) to maintain full funding of the Main Library
project.
Whatever projects Council selects for reinstatement, the appropriation for the new
projects must be cancelled and re-appropriated to the capital projects formerly selected.
3
Recommendation
Staff recommends that the City Council 1) affirm the diversion of funds from specified
capital projects to the Main Library project and approve the reinstatement of selected
projects, 2) approve appropriations and budget changes accordingly, 3) and approve
the bond reimbursement resolution.
Prepared By:
Susan McCarthy, City Manager
Gordon Anderson, Assistant City Manager
Mona Miyasato, Assistant to the City Manager for Management
Services.
4
9,A
MAR 2 5 2003
City Council Meeting: March 25, 2003
Santa Monica, California
TO: Mayor and City Council
FROM: City Staff
SUBJECT: Affirmation of Capital Project Diversions to Fund the Main library
Project
Introduction
This report recommends that Council 1) affirm the diversion of funds from specified
capital projects to the Main Library expansion project or select funds from alternative
capital projects and 2) approve bond reimbursement resolution.
Backaround
On January 28, 2003, City Council approved the design-build construction contract
with Morley Builders for the new Main Library and public parking The Morley
contract is slightly over $56 million, and the total project cost is approximately $72
million At that time, Council approved the diversion of $21.5 million from specified
capital projects to the Main Library project but requested that the list of projects return
to them at a later date for further discussion
The proposed diversions are shown in Attachment A. The balance of funds required
were funded through the Library General Obligation Bond of 2002 and provided for in
previous capital budgets.
~A
1
MAR 2 5 2003
The projects listed in Attachment A were selected based on the following criteria
a) Other funding available - the project can be funded by other (non General
Fund) dollars.
b) Undefined Project - the project is in a very preliminary stage (not yet planned
or designed),
c) Insufficient funds - the project requires substantial additional dollars to
complete, which are unlikely to be available in the next two to three years.
d) Reduced Scope - the project can be scaled down, so that some funds can be
diverted,
e) Ongoing financial impact -the project, if implemented, would produce
ongoing operating impacts that cannot be supported in the next few years,
f) Discretionary in nature - the project is one-time or discretionary in nature. Its
deferral would not jeopardize public health or safety, or significantly impair
maintenance or repair of basic city infrastructure or affect core city services.
Discussion
Over the last decade, the City's fortunate fiscal position allowed the allocation of
significant resources to capital projects from revenues in excess of the City's
operating needs. About one-third of the dollars are allocated for maintenance and
replacement programs and two-thirds for one-time, discretionary projects. Staff
provides a status report of all capital projects (for all funds) to Council at the mid-year
and year-end budget reviews.
2
Over time, the list of funded capital projects grew but implementation slowed as
workload increased. This created a backlog of projects. Some projects have not
been, or were only partially, realized due to lack of sufficient staff or financial
resources, delays from extensive analysis and environmental study, impediments
caused by external agencies or a re-prioritization of Councilor community objectives.
Approximately $30 million is currently budgeted to capital projects in the General
Fund (and General Fund supported funds, such as the Beach and Pier funds), which
are allocated to specific uses but have not yet been "encumbered," .e., legally
committed through issuance of contracts or purchase orders.
. Alternative Projects
Critical community projects, which have been in the planning, design or
environmental review process for several years, such as Virginia Avenue Park, are
not recommended for deferral or diversion of funds. Diverting funds from ongoing
programs that maintain basic city infrastructure, such as the street and park lighting
retrofit program, the street repair and resurfacing program, and the parks and
facilities maintenance and accessibility program is not a responsible strategy.
These programs receive an annual allocation, which has been reduced in recent
years and will likely be further reduced in the coming years due to fiscal constraints.
There are other projects for which City has legal obligations (underground tank
management program, leases for Fire department vehicles, landfill mitigation
3
program, etc) or with minimal remaining work to be preformed which cannot be
deferred or eliminated.
Projects from which unobligated funds could be diverted, in lieu of the projects shown
in Attachment A, are shown below:
Civic Area Development Fund - In addition to the amount shown in Attachment A,
there remains an additional $1.4 million that could be diverted. The Civic Area
Development fund was created by Council policy to fund improvements to the Civic
Center Specific Plan and related areas. The fund receives an annual portion of the
transient occupancy tax and would be replenished over time, absent policy changes.
In the immediate future, other funds can be used for studies related to the Civic
Center Specific Plan, and staff is applying for MTA grant funds for infrastructure
development. A financing and phasing plan for the entire CCSP is being developed
and will require a comprehensive strategy that will necessarily incorporate more
sources than these funds.
City Hall Seismic Retrofit and Expansion - In addition to the $3.1 million shown in
Attachment A, an additional $3 million is available for this project. Staff is evaluating
whether the existing Police building should be seismically retrofit and made ADA
compliant to house off-site staff and recoup ongoing lease costs. The Civic Center
Specific Plan calls for the demolition of the building and creation of a new City
Services building, but those plans will not be implemented for several years and will
require significant resources that are not apparent at this time. Staff is evaluating a
reuse plan now and will have more information at the May budget hearings. This
issue may be addressed by the Civic Center Working Group in the near future.
Airport Park - While there is continued community desire for the development of
Airport Park, the project could be placed on hold, and the funds previously budgeted
($6.2 million) could be diverted. The project is still in the planning phase and not
scheduled for construction until April 2005. A supplemental environmental impact
report is being finalized and scheduled for certification in July 2003. The project
would also add ongoing operating costs to the already constrained general fund.
Another option is to reduce the scope of the project by deferring the streetscape
component ($1.3 million), which could be implemented as a second phase ofthe
project at a later date. I .
4
While Council could consider the first two alternatives, it may be more appropriate to
allow the Civic Center Working Group to proceed in developing recommendations as
to the financing and phasing plan and reuse of the Police building before adjusting
the Civic Area Development Fund or the City Hall Seismic Retrofit and Expansion
accounts.
· Future Debt Issuance and Resolutions Allowing Reimbursement
Debt issuance has been suggested to avert the diversion of other capital funds to the
Main Library project. Prior to the projection of the City's deficit, staff had proposed
debt to fill the gap between available funds and project costs. At that time, the
project gap was about $9 million; it is now $21 million. Issuing debt of this magnitude
nearly doubles the amount that will ultimately be paid and would require 20 years of
debt-service of $2.4 million annually. That amount must be carved out of annual,
ongoing operating budgets, further draining the General Fund. In contrast, the
diversion of capital funds is one-time in nature and their use will not impact the City's
long-term ability to provide ongoing programs and services. Over the next years, the
City will be cutting ongoing expenditures and identifying new revenue streams to
eliminate its deficit. In this climate it would be imprudent to introduce additional
ongoing costs, further exacerbating the deficit and deepening the amount of cut
required.
Nevertheless, when the City's financial situation is more secure, it may be prudent to
issue debt on the Library and reimburse funds spent on the project. If so, the
5
deferred projects could be reinstated. The attached resolution would allow staff
provides that option should circumstances allow (Attachment B).
Budget/Financial Impact
Council has approved the transfer of funds from the original list of capital projects
(Attachment A) to the Main Library Project. The transfer has been effected to allow
the Main Library project to proceed. If Council selects other projects in lieu of those
in Attachment A, the appropriation for the new projects must be cancelled and re-
appropriated to the capital projects formerly selected.
Recommendation
Staff recommends that the City Council 1) affirm the diversion of funds from specified
capital projects to the Main Library project or select funds from the alternatives
provided and 2) approve bond reimbursement resolution.
Prepared By:
Susan McCarthy, City Manager
Mona Miyasato, Assistant to the City Manager for Management
Services.
Attachments:
Attachment A - Capital Improvement Project Diversion of Funds
to the Main Library Project
Attachment B - Reimbursement Resolution
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