Staff Report - Apow N 0 MEETING DATE: 06-18-07
ITEM NO:
~~h.!ps GA~ps COUNCIL/AGENCY AGENDA REPORT
DATE:. JUNE 13, 2007
TO: MAYOR AND TOWN COUNCIL/
CHAIR AND MEMBERS OF THE REDEVELOPMENT AGENCY
FROM: DEBRA J. FIGONE, TOWN MANAGER/EXECUTIVE DIRECTJ
SUBJECT: 1. APPROVE FINAL CIVIC CENTER MASTER PLAN
2. PROCEED WITH ANALYSIS AND PLANNING FOR A NEW LIBRARY AND
PROVIDE DIRECTION ON NEXT STEPS
RECOMMENDATION:
1. Approve Final Civic Center Master Plan.
2. Proceed with analysis and planning for a new library and provide direction on next steps.
PURPOSE OF THE MASTER PLAN
In 2001, the Town Council prudently decided to begin a master planning process for the facilities at the
Civic Center. Public buildings do not last forever; moreover, their ability to serve the public may
decrease over time. The master planning process is intended to determine the public's needs for services
over the next 25 years, and to evaluate options for meeting those needs through existing and/or new
public spaces. Completion of the master plan is not a commitment to undertake any of the
improvements. It is a plan for how to proceed over the course of time, if and when the Council and
community so determines.
BACKGROUND:
At the February 12, 2007 Study Session, the Town Council provided direction on the draft vision,
conceptual costs, funding sources, and phasing options for the Civic Center/Library Master Plan
(CCMP). The staff report for that session (Attachment 1) provides a summary of the history and
process, including significant community input and technical analysis, leading to the draft CCMP
presented that night. The CCMP recommended for approval on June 18th reflects Council's feedback
and input from the February study session. The purposes of the June 18th Council discussion are to
~e ~J& eb bQ-"
PREPARED BY: PAMELA S. JACOBS
ASSISTANT TOWN MANAGER
NAMGR\PJacobs\Civic Center\6-18-07 Staff Report.doc
Reviewed by: Assistant Town Manager Town Attorney
Clerk Administrator Finance Community Development
PAGE 2
MAYOR AND TOWN COUNCIL/CHAIR AND MEMBERS OF RDA
SUBJECT: APPROVE FINAL CIVIC CENTER MASTER PLAN AND PROVIDE DIRECTION
ON NEXT STEPS TO PURSUE MEETING PRIORITY MUNICIPAL FACILITY
NEEDS
JUNE 13, 2007
approve the CCMP as the Town's framework for future facility planning and to provide direction on the
next steps to meet priority municipal facility needs.
DISCUSSION:
CIVIC CENTER MASTER PLAN
As noted, the Civic Center Master Plan (CCMP) (Attachment 2) reflects community input and analysis
conducted over many years. The document itself provides a comprehensive chronicle of the
development of the CCMP, along with supporting material related to the process. Specifically, the
CCMP includes:
■ Executive Summary of the elements of the CCMP;
■ Master Plan Vision, which identifies: the site plan for existing and potential new facilities to
meet the community's needs into the future; a phasing strategy for addressing priority needs; and
an interim facility strategy;
■ Conceptual Cost Model and Financing and Funding Strategy, which presents the estimated costs
for the conceptual elements of the CCMP and identifies potential funding sources and
considerations;
■ Space Program, which identifies the space required to provide a wide array of services to the
community;
■ Operational Plan, which describes how the Town does and could provide these services;
■ Existing Conditions Analysis of Civic Center Facilities, including findings from visual
observations and review of available documentation on building structures, building systems,
and landscape architecture;
■ Town Service Assessment, which identifies the services the community desires the Town to
provide; and
■ Appendix, including a flow chart of the CCMP process, Town Council staff reports, Master Plan
site options, and a community poll on potential Civic Center facilities.
Master Plan Vision
Site Vision.
Based on Council and public feedback, the long-range Master Plan Vision in the final CCMP is the one
presented as the "Phased Site Vision" at the February Study Session. As discussed in February, the
vision reflects the principles articulated by the Town Council and the community throughout the
development of the CCMP. These principles are incorporated in the Master Plan Vision and are
reflected in the elements contained in the long-range vision:
PAGE 3
MAYOR AND TOWN COUNCIL/CHAIR AND MEMBERS OF RDA
SUBJECT: APPROVE FINAL CIVIC CENTER MASTER PLAN AND PROVIDE DIRECTION
ON NEXT STEPS TO PURSUE MEETING PRIORITY MUNICIPAL FACILITY
NEEDS
JUNE 13, 2007
■ Full use of existing facility for Town administration and services, including a one-stop
community development center;
■ Extensive open, green space;
■ View sheds through the site;
■ Enhanced access to Pageant Park;
■ On-site police facility;
■ New facility housing 2-story library;
■ New facility housing community center and dual-purpose Council chambers;
■ Rc-alignment of Fiesta Way on the edge of the site rather than through it;
■ No programming for services in the Town-owned facility on Main St. across from the Civic
Center;
■ Underground and above-ground garages to accommodate increased parking need; and
■ Protection of the majority of significant trees.
One difference in the Master Plan Vision from the site plans presented in February is the amount of
parking accommodated on the site. Since the draft plan was presented, the Town undertook an in-depth
parking study to ensure the CCMP accurately reflects the demand for parking. The methodology for the
parking study included an occupancy survey for the existing Civic Center, comparison of parking
demand at similar facilities in other Bay Area jurisdictions, and parking supply recommendations based
on projected staff, volunteers and visitors under the built-out CCMP. The parking study produced an
estimated parking demand of 292 spaces (compared to the previous estimate of 338 spaces), which has
been incorporated in the Master Plan Vision and reflected in the conceptual cost model if the long-range
vision is ever fully built. The previous estimated parking demand was based on application of Town
code requirements designed for commercial/business uses. When calculated based on a focused analysis
of current and peak demand for parking at municipal facilities, the number changed. At the time any
one element of the CCMP is constructed, an analysis of additional parking needs beyond current
capacity for that element would be required.
CCMP Long-Range Phasing Strategy
Because the CCMP is a framework for long-term facility planning, it sets forth a strategy of how the
plan could be implemented over time if it were to be undertaken in its entirety. The strategy reflects
priorities to meet service needs and an implementation approach that accommodates new construction
without the need for interim building or interim parking facilities. The phasing strategy begins with a
new Police facility, followed by a new Library, and then a Community Center. It finishes with a
renovation of the existing Civic Center buildings for Town administration. All phases of the work are
designed to avoid the need to house services in off-site facilities during construction of new facilities.
This phasing order is consistent with Town Council feedback at the February Study Session.
PAGE 4
MAYOR AND TOWN COUNCIL/CHAIR AND MEMBERS OF RDA
SUBJECT: APPROVE FINAL CIVIC CENTER MASTER PLAN AND PROVIDE DIRECTION
ON NEXT STEPS TO PURSUE MEETING PRIORITY MUNICIPAL FACILITY
NEEDS
JUNE 13, 2007
Conceptual Cost Model
The conceptual cost model is intended to provide an overall conceptual cost for each element of the
CCMP. It is important to note that the cost estimates are based on conceptual, not actual, buildings.
That is, the cost estimates are calculated by multiplying the number of square feet required by the
average square footage cost for t hat type of aciliiy. The costs per square foot are based on recent
regional construction of similar facilities and an understanding of the assessment of the condition of and
proposed use for the existing facility.
Following is a high level summary of the estimates in current dollars generated by the conceptual cost
model for each element. Square footage figures represent the total building estimate, which includes a
"building factor" for walls and internal circulation. Detailed estimated costs and square footage
breakouts for the elements of the CCMP are presented in the document. The estimates include costs for
construction, sitework, demolition, and "soft costs" (such as contractor costs, technical consultants, soils
and geotechnical reports, development process fees, testing and inspections, and contingency
allowance). They do not include estimates for Furniture, Fixtures and Equipment.
CONCEPTUAL COST MODEL ESTIMATES
Service Total Square Feet Total Cost Estimate
New Police Facility 18,369 s.f. (new) $11,267,137
Parking Structure 68 spaces $ 2,213,244
New Library .
Underground Parking
New Community Ctr.
Underground Parking
Civic Ctr. Renovation
Total
39,821 s.f. (new) $22,060,431
69 spaces $ 7,712,820
32,040 s.f. (new) $14,832,258
136 spaces $13,972,500
25,191 s.f. (existing) $ 9,128,708
$81,187,098
If and when any of the facilities are designed for construction, true cost estimates would take into
account any difference in adjusted square footage, architectural design, materials, construction
challenges, value engineering; or other factors, such as inflation, that may influence costs. These factors
could ultimately result in greater or lesser costs for the facilities.
ADDRESSING SERVICE PRIORITIES
With the approval of the CCMP, the Town will have a framework in place for future facility planning
based on space needs to deliver services to the community and on an understanding of how the Civic
Center site can accommodate those needs. Approving the CCMP does not set in stone the path forward
PAGE 5
MAYOR AND TOWN COUNCIL/CHAIR AND MEMBERS OF RDA
SUBJECT: APPROVE FINAL CIVIC CENTER MASTER PLAN AND PROVIDE DIRECTION
ON NEXT STEPS TO PURSUE MEETING PRIORITY MUNICIPAL FACILITY
NEEDS
JUNE 13, 2007
for meeting public facility needs, however. It may be that the community will not choose to implement
all or any of the individual elements of the CCMP. In addition, opportunities may arise to address the
Town's priority space needs in a more efficient, cost effective and/or timely manner.
Police Services
It is within this context that the Town Council directed staff to explore the feasibility of purchasing the
Verizon building on Los Gatos Blvd. for police services. Addressing the critical need for additional
space for police services was identified as the highest priority in the CCMP, due to the findings that the
existing space is sub-standard, with many examples of overcrowding, insufficient space for interviewing
victims, a multi-purpose dispatch area with many distractions, lack of security for the public and police
officers, out-of-compliance holding cells, lack of vehicle security, insufficient crime evidence storage,
and more. In a separate action at the June 18th Council meeting, the Town Council will consider
whether to purchase the Verizon building to accommodate a majority of police operations, with some
operations remaining in the existing space occupied by the police department in the Civic Center.
Although this action is not identified in the CCMP, which calls for a new police facility on the Civic
Center site, it is a cost-effective and timely way to meet a priority service need.
Library Services
The second priority identified in the CCMP is additional space for library services. The.current library
was constructed in 1964 when the population of the Town was about 9,000. With a population today of
about 30,000 and the high levels of usage (209,000 visits per year), the library is under-serving the
community. The limited space restricts the provision of services generally available in libraries today;
in some cases available space is sub-standard and in others, no space is available for desired services. In
addition, overcrowded conditions have led to disabled access deficiencies throughout the building.
Based.on the CCMP and the Council's comments at the February Study Session, it is recommended that
the Town proceed with analysis and planning for a new library to meet the needs of the community.
This is also consistent with the priority to "Determine and implement action plan for the development of
a new library" identified by Council at the 2007 Council Retreat.
Next Steps - Proceed with Planning for a New Library
The CCMP provides a foundation for planning a new library on the Civic Center site. Based on
community, user and staff input and on technical analysis of space needs, the space program for the
library identifies a need for a library of approximately 40,000 sq. ft. (including "building factor"
described earlier). The conceptual cost model, which is not based on actual building design, estimates a
cost in 2007 dollars of approximately $22 million for a library of this size (not including the cost of
furniture, fixtures and equipment), estimated from $97,500 to $136,500 in today's dollars. If an
underground parking garage for 69 spaces is constructed in conjunction with the library, the estimated
cost is approximately $7.7 million.
PAGE 6
MAYOR AND TOWN COUNCIL/CHAIR AND MEMBERS OF RDA
SUBJECT: APPROVE FINAL CIVIC CENTER MASTER PLAN AND PROVIDE DIRECTION
ON NEXT STEPS TO PURSUE MEETING PRIORITY MUNICIPAL FACILITY
NEEDS
JUNE 13, 2007
These numbers represent a benchmark for determining what the Town and the community ultimately
desire and can afford. The next steps in pursuing the construction of a new library will refine the size
and cost estimates, as well as address questions about parking, site placement, and building design. .
Staff will develop a detailed work plan for further analyzing the library project if Council directs the
administration to proceed; however, following are key steps which will need to be addressed in the work-
plan for Council consideration:
■ Determine how Council would like to receive process and policy guidance throughout the
planning for a new library. This may include using a Council sub-committee to provide process
guidance to staff, similar to the role of the sub-committee during the CCMP process; a .
stakeholder group to provide input to staff, Council and consultants and to assist with efforts to
communicate with the community about the library project; and/or other methods;
■ Engage an architect through Request for Proposal process to undertake schematic. design, during
which issues. related to building size, cost, placement, and design, and parking requirements will
be addressed;
■ Undertake an in-depth financial analysis to identify funding alternatives, and develop
implementation plan for funding as directed by Council;
■ Determine whether to proceed with the library project based on analysis and public input, which
may include polling residents/voters;
■ Proceed with architecture and development process once funding is secured; concurrently
develop space re-use plan for the existing library space.
CONCLUSION:
The development of the Civic Center Master Plan (CCMP) has been a long, complex endeavor.
Grounded in the prudent decision to plan for the Town's long-term facility needs, the CCMP is driven
by the services the Town currently provides and the community desires. The CCMP that has unfolded
over time reflects many principles articulated by the Town Council and the community. Community
and Town Council input, and analysis of service needs, space requirements, and site considerations have
evolved into a master site vision that shows how the Civic Center site could ultimately accommodate
Town services
Staff recommends that Council approve the Civic Center Master Plan as a long-term roadmap for the
future, enabling the Town Council to make decisions about facility improvements to enhance service
delivery as necessary .or as opportunities arise over the next 25 years. Without the CCMP, these
decisions would not be able to be made in such a broad context or with such in-depth analysis.
Based on the CCMP and Council comments at the February Study Session, staff further recommends
proceeding to address the two highest priority needs: police facilities and library services. A separate
action on the June 18th Council agenda to purchase the Verizon building addresses the need for
additional space for police services. The next priority is planning for sufficient space for library services
PAGE 7
MAYOR AND TOWN COUNCIL/CHAIR AND MEMBERS OF RDA
SUBJECT: APPROVE FINAL CIVIC CENTER MASTER PLAN AND PROVIDE DIRECTION
ON NEXT STEPS TO PURSUE MEETING PRIORITY MUNICIPAL FACILITY
NEEDS
JUNE 13, 2007
that meet the needs of the community. Staff recommends proceeding with analysis and planning for the
construction of a new library. If the Council directs staff to proceed, staff will return with a workplan,
including a timeline and cost estimate to reflect Council direction.
ENVIRONMENT AL ASSESSMENT :
Is not a project defined under CEQA, and no further action is required.
FISCAL IMPACT:
Funds for initiating the next steps toward building a new library are available in the FY 2007-11 Capital
Improvement Plan. Additional funds are available in a reserve account for Civic Center improvements.
Staff will develop a work plan with timeline and costs, pursuant to Council direction on Tune 18th .
Attachments:
1. Staff report from February 8, 2007 Study Session (without attachments)
2. Los Gatos Civic Center and Library Strategic Master Plan
~owN o,~ MEETING DATE: 02-12-07
STUDY SESSION
ins eAtos. COUNCIL AGENDA REPORT
DATE: FEBRUARY 8, 2007
TO: MAYOR AND TOWN COUNCIL
FROM: DEBRA J. FIGONE, TOWN MANAGER .t
SUBJECT: STUDY SESSION AND DIRECTION ON THE VISION, CONCEPTUAL
COSTS, FUNDING SOURCES, AND PHASING OPTIONS FOR THE CIVIC
CENTER/LIBRARY MASTER PLAN
RECOMMENDATION:
Provide feedback and direction on the vision, conceptual costs, funding sources and phasing
options for the Civic Center/Library Master Plan
PURPOSE OF THE MASTER PLAN
i
In 2001, the Town Council prudently decided to begin a master planning process for the facilities
at the Civic Center. Public buildings do not last forever; moreover, their ability to serve the
public may decrease over time. The purpose of the master plan is to ensure that the Town is
prepared to undertake improvements to the Civic Center, if and when necessary. The master
planning process is intended to determine the public's needs for services, and to evaluate options
for meeting those needs through existing and/or new public spaces. Completion of the master
plan is not a commitment to undertake any of the improvements. It is a .plan for how to proceed
over the course of time, if and when the Council and community so determines.
BACKGROUND:
The effort to develop a Civic Center/Library Master Plan had its beginnings in the early 1980s
when the Town Council discussed the space needs of the library and the police department, as
well as the possibilities for obtaining a site to build a new library. In the late 1980s, properties
on Villa Ave. and Fiesta Way were acquired with expansion of the Civic Center in mind, and the
Town applied for funding under Proposition 85, the California Library Construction and
Renovation Bond Act of 1988. That application was not successful.
~ . ~ act
PREPARED BY: PAMELA S. JACOBS
ASSISTANT TOWN MANAGER
Reviewed by: Assistant Town Manager
Town Attorney
Clerk Administrator Finance Community Development
ATTACHMENT 1
PAGE 2
MAYOR AND TOWN COUNCIL
SUBJECT: STUDY SESSION AND DIRECTION ON THE VISION, CONCEPTUAL
COSTS, FUNDING SOURCES, AND PHASING OPTIONS FOR THE CIVIC
CENTER/LIBRARY MASTER PLAN
FEBRUARY 8, 2007
In 1998, the Town once again began planning for a new library to be built at the Civic Center. A
library needs assessment was completed, with funding from the Friends of the Library, the
Library Trust and the Ness Trust. That needs assessment concluded that the library needed more
space to continue to function effectively. Following this assessment, the Town determined that
planning for a new library should be set within the context of the entire Civic Center complex. A
master plan would provide a comprehensive understanding of community needs related to the
municipal services provided at the Civic Center and of how the Civic Center site and, facilities
could best meet those needs. With a master plan, any needed incremental improvements could
occur within a broader context.
On April 15, 2002, the Town Council adopted a resolution authorizing the Town Manager to
execute an agreement with Anderson-Brule Architects (ABA) to serve as consultants in the
development of a strategic Master Plan for the Los Gatos Civic Center and Library.
To-date, the Council has discussed five of the elements of the Master Plan. These include:
■ Town Service Assessment, which identifies the services the community desires the Town
to provide (based on input from focus groups and community forums) - reviewed by
Council on October, 7, 2002;
■ Existing conditions analysis of Civic Center facilities - reviewed by Council on January
6, 2003 (note: the project was put on hold from the fall of 2003 until early 2006);
■ Operational Plan, which describes how the Town does and could provide these services -
reviewed by Council on May. 1, 2006;
■ Space Program, which identifies the space required to provide these services - reviewed
by Council on May 1, 2006; and,
Site concepts for locating the services on the Civic Center site (based on input from a
design charrette with 24 members of the community and staff) - reviewed by Council on
June 5, 2006.
A Town Council ad hoc committee comprised of Mayor Pirzynski and Council member McNutt
has provided policy guidance throughout the CCMP process since 2003 (Mayor Pirzynski and
former Council member Sandy Decker comprised the committee prior to this time). Ad hoc
committee members serve as Council "liaisons" to provide guidance and feedback or projects
and/or events, such as the COMP, that may have a significant impact on the community.
Attachment 1 presents a summary of the community outreach and participation contributing to
the development of the CCMP to-date. Outreach included six focus groups, two community
forums, and on-line and counter questionnaires to receive input regarding Town services. All of
the Council meetings noted above provided additional opportunities for community input. More
than 150 people participated in these various outreach efforts, and more than 100 questionnaires
were completed.
0
PAGE 3
MAYOR AND TOWN COUNCIL
SUBJECT: STUDY SESSION AND DIRECTION ON THE VISION, CONCEPTUAL
COSTS, FUNDING SOURCES, AND PHASING OPTIONS FOR THE CIVIC
CENTER/LIBRARY MASTER PLAN
FEBRUARY 8, 2007
At the June 5, 2006 Study Session and a subsequent Community Forum held on June 8th, the
Town Council and public provided feedback on four site options. In a workshop held in August,
staff,. the Council ad hoc committee, and the consultants translated the feedback on the four
options•into a master site layout for the Civic Center. At that time; it was determined an- in-depth.
parking-study was needed to ensure the plan accurately reflects the demand for parking. It was
also-determined that more time was needed to understand the range and capacity of various
financing options and sources.
Although the parking study is not yet completed, staff is presenting the vision, conceptual costs,
funding sources, and phasing options for the Civic Center/Library Master Plan at the February
12th Study Session. As discussed later in this report; the information from the parking study and
any changes necessary due to its findings will be included in the final Master Plan to be`brought
before Council later in the spring. A detailed financing analysis would be developed after
Council direction is established.
DISCUSSION:
Principles Shaping the Vision for the Civic Center/Library Master Plan
y Throughout the Civic Center Master Plan (CCMP) process, the Town Council and the
community have articulated principles that have progressively shaped the vision for the Civic
Center site. These principles are reflected in the elements of the CCMP the Town Service
Assessment; the Operational Plan; the Space _Program; the Site Options; and, now, the vision for
the site. Collectively, these principles represent community interests.and desires regarding what,
where, and how municipal services are provided. They also represent findings from technical
analyses conducted throughout the course of the planning process. Key principles include:
■ Planning for future municipal facility improvements is prudent. The Council and the
community will need to determine if and when it is necessary to undertake any
improvements.
■ Any proposed improvements, whether in existing or new facilities, must be affordable for
the Town to undertake with current or projected revenues and/or acceptable to the
community to fund through bonds or other tax measures over time.
■ Services provided by the Town or desired by the community should drive the
recommended space program, within the opportunities and constraints presented by the
Civic Center site.
■ The scope of the Civic Center Master Plan should be limited to the existing Civic Center
site, plus the adjacent Town-owned properties (including the building occupied by Los .
Gatos-Saratoga Recreation). The Town's corporation yard and museums are not included
in the scope.
PAGE 4
MAYOR AND TOWN COUNCIL
SUBJECT: STUDY SESSION AND DIRECTION ON THE VISION, CONCEPTUAL
COSTS, FUNDING SOURCES, AND PHASING OPTIONS FOR THE CIVIC
CENTER/LIBRARY MASTER PLAN
FEBRUARY 8, 2007
■ The Civic Center should be the "heart of the community," where there are opportunities
to gather, celebrate, and learn, as well as to receive municipal services.
■ Any improvements or, changes to the Civic Center should maintain the "small town" feel.
r . Easily identified central points of services, with clear signage throughout, should be
included in the vision for Civic Center facilities.
• Available and emerging technologies should be used to enhance access to services
through options for self-service and extended hours:
■ The existing Town Hall facility should be reused for Town services, avoiding significant
high cost retrofitting.
■ Green space should be maximized.
■ Views into the site and beyond should be maximized
Pageant Park should be preserved, with increased, access for the public.
■ Significant trees should be protected to the extent possible.
Applying the Principles: Vision for the Civic Center Site
As noted earlier, a design charrette with 24 participants (nine community members and 15 staff
members) produced four site concepts that were presented and discussed at a Council Study
Session in June, 2006 and at a subsequent community forum. The principles above guided the
development of the four site concepts, which were entitled Extended Plaza, Great Green, r
Boulevard, and New Town Center. Based on the feedback from the Council and the community
on the four concepts, the Town's consultants prepared a Master Plan site vision that is presented
in Attachment 2 and will be discussed in more detail gat the Study Session.
Site Vision for the Civic Center: The vision for the site reflects the principles listed above, input
from the Council and the community, .and staff's and the consultant's professional expertise and
analysis. This concept combines features from three of the previously presented concepts (all
except the New Town Center concept). Key features include:
■ Extensive open, green space;
■ View sheds through the site ;
■ Enhanced access to Pageant Park;
■ On-site police facility with associated parking;
■ New facility housing 1-story library, community center and dual-purpose Council
chambers and associated parking;
■ Re-alignment of Fiesta Way on the edge of the site rather than through it;
■ Adaptive use of existing facility for Town administration and services, including a one-
stop community development center;
■ No programming for services in the Town-owned facility on Main St. across from the
Civic Center;
■ Underground and above-ground garages to accommodate increased parking need; and
■ Protection of the majority of significant trees.
PAGE 5
MAYOR AND TOWN COUNCIL
SUBJECT: STUDY SESSION AND DIRECTION ON THE VISION, CONCEPTUAL
COSTS, FUNDING SOURCES, AND' PHASING OPTIONS FOR THE CIVIC
CENTER/LIBRARY MASTER PLAN
FEBRUARY 8, 2007
The square footage for each of the functions and/or facilities is depicted in Attachment 3..As
noted, this vision includes a new facility housing the library, community center and Council
chambers. A key feature of this facility is that the library would be housed on one floor, which is
the preferred configuration from the library industry's "best practices" perspective. The
"community center" represents a number of spaces, lncluding'space for the. Community Services
department, senior services, a program hall for large events or meetings; rooms for smaller
community meetings and/or classes, and a dual purpose Council chambers/community room.
The community center includes space for Los Gatos-Saratoga Recreation (LGSR), which
currently rents space for recreation programs from the Town in the Town-owned facility across
from the Civic Center and in the Neighborhood Center. This space has been included for
planning purposes, since LGSR currently uses Town space; however, the Town does not have
responsibility for accommodating LGSR's space needs. Any proposed changes to LGSR's
current use of Town space would need to be coordinated with them.
Phased Site Vision
Because the above vision includes a large 64,000-squar-e-foot facility housing a, one-story library
and-Multiple other services, it is not possible to phase its construction if necessary for timing
and/or funding purposes. Given that the goal for the CCMP has always been to include phasing
options, the consultants have laid out a second vision that accommodates this. The "Phased Site
Vision" is depicted in Attachment 4. The difference in this option is that the new facility is
divided into two buildings, one housing a two-story library and the other housing the'
"community center" services. A community room may be to be transferred from the community
center to the library building to enable to the library to be a more complete stand-alone facility if
the library was pursued in a first phase. Parking associated with the library and the community
center is included within their individual footprints, with one level of underground parking
beneath the library and a two-level underground garage beneath the community center.
At the Study Session, the consultants will discuss the features of both the initial vision and the
phased vision, as well as the opportunities and constraints associated with them. Staff and the
consultants are seeking Council feedback on each option, including general thoughts and
comments on specific elements.
Achievin)Lthe Vision: Cost and Financing Considerations
Conceptual Cost Model
Attachment 5 presents the estimated costs for the CCMP. It is important to note that the cost
estimates are based on conceptual, not actual, buildings. That is, the costs derive from the square
feet required times an average square footage cost for that type of facility. For parking, the
PAGE 6
MAYOR AND TOWN COUNCIL
SUBJECT: STUDY SESSION AND DIRECTION ON THE VISION; CONCEPTUAL
COSTS, FUNDING SOURCES, AND PHASING OPTIONS FOR THE CIVIC
CENTER/LIBRARY MASTER PLAN
FEBRUARY 8, 2007
estimate is based on the number of parking spaces required times the average per space cost for
either above-ground or below-ground parking. The cost model includes primarily space.
designated as "core" in the space program. Some "optional" space is not included; and parking
numbers do not account for the'option'l space not included. If and when any of the facilities are
designed for construction, true cost estimates would take into account any' difference. in
1 11
architectural design; materials, construction challenges, value engineering, or other factors that
may influence costs. These factors could ultimately result in greater or lesser costs for the
facilities.
CONCEPTUAL COST MODEL ESTIMATES
Service
Total Square Feet
Total Cost Estimate
New Police Facility
18,369 s.f. (new)
$11,267,137
Parking Garage - Police
84 spaces
$ 4,582,980
New Library
39,821 s.f. (new)
$22;060,431
Parking Garage - Library
69 spaces
$ 7,712,820
i
-
w
1
2
New Commun
ty Center
32,040
s.f. (ne
)
$
4,83
,258
Parking Garage - Com. Ctr.
157 spaces
$17,549,460
Civic Ctr. Renovation
25,191 s.f. (existing)
$ 9,128,708
Total
$87,133,794
Costs for parking are a significant portion of the total estimated costs. The high costs are largely
attributable to the need to provide two levels of underground parking for the majority of the
parking demand. The parking estimates used for the conceptual cost model are based on the
application of the parking requirements in the Town code. It should be noted that in the case of
the combined Council chambers and community room, two different parking ratios could have
been used. Staff and the consultants opted to use the higher ratio of parking required which
seemed most appropriate given the time of use of these facilities. This resulted in a lower
demand for parking than would have been required at the lower ratio. As noted earlier and
discussed later in the report, a parking study is underway that could recommend a different level
of parking demand overall and/or for this function specifically. The costs could be affected
either way depending on the findings.
The cost estimates include a 35% factor for "General Conditions/Soft Costs," which are
comprised of contractor costs, standard consultants (e.g., architecture, structural, electrical,
plumbing, landscape, etc.) fees, soils and geotechnical reports, development process fees, testing
PAGE 7
MAYOR AND TOWN COUNCIL
.SUBJECT: STUDY SESSION AND DIRECTION ON THE VISION, CONCEPTUAL
COSTS, FUNDING SOURCES, AND PHASING OPTIONS FOR THE CIVIC
CENTER/LIBRARY MASTER PLAN'
FEBRUARY 8, 2007
and inspections, specialty consultants (e.g., security, lighting, acoustic, etc), and contingency
allowance. More accurate "soft cost" estimates would need to be calculated in conjunction with
the_building design process, and with the development of a specific financing strategy.
The cost estimates also include a 15% building factor which accounts for department to
department circulation, vertical circulation and width of the exterior walls.
Costs not included in the estimate are those for Furniture, Fixtures and Equipment (known as
FFE costs). Typical FFE costs for libraries range from $25 to $35 per sq. ft., suggesting an
estimated FFE cost for the 39,000 sq. ft. library of from $97,500 to $136,500. Different FFE
costs would apply for police facilities (usually. higher due to specialty equipment) and for
community spaces range (potentially lower due to large open areas). Accurate FFE estimates
would need to be calculated in conjunction with the building design process. At the time this
was done, estimates for any possible re-use of existing furniture and equipment would be
evaluated.
Another cost not represented in. the conceptual cost model is the cost for operations and
maintenance (O&M). These are the costs generated by having additional square footage to
operate and maintain. Actual O&M costs would not likely increase proportionate to the increase
in square footage, however, to the extent that "green technology" is incorporated in the design
and information technology is used to enhance productivity and streamline operations. O&M
costs would need to be calculated in conjunction with the building design process, and ongoing
fiscal capacity to cover any increased costs would need to be identified prior to construction.
Funding Sources
The development of a detailed financing strategy is a critical element in achieving the vision for
the CCMP. The financing strategy takes into account available funding sources and their
capacity over a projected period of time. Available sources are paired with eligible elements of
the CCMP according to the desired phasing plan. This ,detailed financing strategy will need to
be developed once the vision for the site and the phasing plan are determined.
Attachment 6 describes the funding sources that may be available for the elements of the CCMP
if the Council and community so determine. It-is likely that any improvements contemplated in
the CCMP will be funded by a combination of strategies commonly referred to as "Pay-as-You-
Go" and "Pay-as-You-Use" strategies. The first strategy ("Pay-as-You-Go") assumes the use of
existing cash, capital campaigns and other fund raising efforts, real property sales, and joint
government partnerships. The second strategy ("Pay-as-You-Use") assumes the need to borrow
funds in some form of future debt financing. An advantage of Pay-as-You-Use financing is that it
matches the benefit and cost of the improvements with the actual users of the improvements over
time. "Pay-as-You Use" strategies, include Redevelopment Agency Tax Increment Financing
PAGE 8
I MAYOR AND TOWN COUNCIL
SUBJECT: STUDY SESSION AND DIRECTION ON THE VISION, CONCEPTUAL
COSTS, FUNDING SOURCES, AND PHASING OPTIONS FOR THE CIVIC
CENTER/LIBRARY MASTER PLAN-
FEBRUARY 8, 2007
and General Obligation Bonds. The attachment describes the funding source, current and/or
projected capacity (if known), and general requirements associated with each.
Issues and Considerations
In-1 ial*
urvey of Los Gatos Voters
As staff worked to bring the vision, conceptual costs, and financing considerations forward for
Council discussion, it became clear that another piece of critical information needed at this stage
is to have preliminary data on public opinion about Town facilities and the public's interest in
supporting new and improved facilities. With the Council ad hoc committee's guidance, staff
engaged Fairbanks, Maslin, Maullin & Associates, a public opinion consultant firm, to conduct
an initial poll of Los Gatos voters.
The poll was a statistically valid, random sample telephone survey administered the week of
January 22°d. Based on the recommendation of the consultants, no advanced information was
shared about the survey so as not to bias the results. The executive summary and the "topline"
results of the survey are provided in Attachment 7.
Key findings from the survey include:
■ Voters. have positive feelings about how the Town provides services and manages Town
finances;
■ Voters do not identify any single issue as a serious problem facing Los Gatos;
■ Over 60% of the voters haven't heard anything about the Civic Center Master Plan and
possible changes or expansions to the library or Civic-Center-,
■ While most voters indicate support for a bond measure to build a library, community
center and police station, that support falls below the required two-thirds threshold
required for approval;
■ Support for a potential bond measure declines significantly when voters hear the'tax
impact of the measure; and,
■ Voters rate a new library higher than a community center or police facility as a potential
use of funds from a bond measure.
Based on the analysis of the survey results, the consultants recommend that the Town undertake
additional public education and outreach before placing a bond measure before the voters and
that the current levels of voter support for a potential bond, measure are not sufficient for the
Town to move forward with a bond measure in 2007. Given the declining levels of support
when voters hear the tax impact of a potential bond measure, the consultants recommend
minimizing the cost of the measure and suggest that library improvements should be a central
focus of a potential bond measure.
PAGE 9
MAYOR AND TOWN COUNCIL
SUBJECT: STUDY SESSION AND DIRECTION ON THE VISION, CONCEPTUAL
COSTS, FUNDING SOURCES, AND PHASING OPTIONS FOR THE CIVIC
CENTER/LIBRARY MASTER PLAN .
FEBRUARY 8, 2007
A public opinion survey is a tool to understand the overall opinions of voters, and, in this case,
their opinions without previous knowledge about the CCMP. Through analysis and
interpretation of results, the survey can serve as a guide for educating the community about a
topic. This initial poll tells us where the voters are today, what is necessary to achieve the levels
of support required, and what is fl e most effective way to get there. It is important to note that
polls cannot predict exactly what the future will be, how voters may feel after more information
is provided, or how external conditions can affect the opinions in the future. One key external
consideration in thinking about public financing for Civic Center facilities is other potential
ballot measures, such as the parcel tax the elementary school district is pursuing, and any other
unanticipated ballot measure that may be pursued by other agencies. The poll conducted for the
CCMP provides valuable benchmark information for the Town as next steps on the CCMP are
contemplated.
Parking Study
As noted above, the Town is undertaking an in-depth parking study to ensure the CCMP
accurately reflects the demand for parking. The Town's current zoning code does not
specifically address public buildings such as the Civic Center, and the types of activities
occurring here. The parking allocation in the CCMP was'based oil the closest land use
designations available in the Town code, and thus may not accurately reflect the demand. As
part of the parking study, the consultant is conducting occupancy surveys during peak periods at
the Civic Center, estimating parking demand for Town vehicles, surveying other civic centers'
parking occupancy, forecasting future parking demand based on the CCMP, and recommending
the parking supply needed.
The results of the parking study and their implications for the CCMP will be brought forward to
Council as part of the final approval of the CCMP. It is expected that these results will affect the
number of spaces required, and thus the cost associated with providing the spaces.
Interim Needs and Opportunities
Interim Needs
It has been clear throughout the development of the CCMP that ultimately the Council and the
community would need to determine if and when major improvements to the Civic Center would
be undertaken. It has also been clear that the solutions to space needs are not solved only by
building new facilities.
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PAGE 10
MAYOR AND TOWN COUNCIL
SUBJECT: STUDY SESSION AND DIRECTION ON THE VISION, CONCEPTUAL
COSTS, FUNDING SOURCES, AND PHASING OPTIONS FOR THE CIVIC
CENTER/LIBRARY MASTER PLAN
FEBRUARY 8, 2007
At the same time, the analysis conducted over the past five years identifies some key deficiencies
in the Civic Center facilities-that warrant addressing in some manner. The Civic Center is a 40-
year-old building, and the 27-year-old Neighborhood Center is a highly-used, multi-purpose
building. In certain cases, addressing the deficiencies in these facilities is necessary regardless of
the timetable for implementation of the CCMP. Key deficiencies include the following:
■ Police services - the most critical need for additional space is for police services. At
5,275 sq. ft., the police department space in the Civic Center is sub-standard with many
issues of overcrowding, insufficient space for interviewing victims, a multi-purpose
dispatch area with many distractions, lack of security for the public and police officers,
out-of-compliance holding cells, lack of vehicle security, insufficient crime evidence
storage, and more. The police department is currently occupying one of the Town-owned
homes to house their operations (1,100 sq.ft. not included in the square foot figure noted
above). In addition, building requirements for public safety space are significantly
greater than for other municipal services, limiting the options for meeting the need in
existing facilities.
■ Library Disability Access With its high public usage, the library facility-must be
available to members of the public with disabilities. Overcrowded conditions have led to
disabled access deficiencies throughout the library. In addition, the elevator is out of
compliance for disabled access.
■ Parking - The existing Civic Center experiences parking shortfalls at peak periods
throughout the day and during events with large gatherings of attendees.
■ Other, less critical deficiencies such as signage, the Neighborhood Center kitchen, and
the need for additional meeting space may need to be addressed depending on the
timetable for implementation of portions of the CCMP.
As noted, the police department has the most critical space needs for both the short and the long-
term. While the public opinion survey showed support for funding additional space for police,
that support was not as high as the support for a new library. This is likely because the library is.
a visible, highly-used public facility, while the police department gets relatively few visitors and
the vast majority of Los Gatos residents do not have occasion to know about the dire conditions.
Monitoring Opportunities
Even if the CCMP was in place, with implementation underway, the Town should always be
aware of opportunities that may address the Town's space needs in a more efficient, cost-
effective and/or timely manner. For this reason,.staff continues to monitor the local real estate
market for land or space that may meet the Town's needs.
Given the critical need for additional space for the police department, staff has focused on
monitoring the market for buildings that could meet these needs. Another reason staff has
PAGE II
MAYOR AND TOWN COUNCIL
SUBJECT: STUDY SESSION AND DIRECTION ON THE VISION, CONCEPTUAL
COSTS, FUNDING SOURCES, AND PHASING OPTIONS. FOR THE CIVIC
CENTER/LIBRARY MASTER PLAN
FEBRUARY 8, 2007
focused on the police department is because police operations could potentially "unplug" from
....the Civic Center. A location adjacent to a major arterial could provide good access to the
u Town's neighborhoods. In addition, a full operational presence at the Civic Center is not
necessary given the activities conducted by police and the relatively low contact with the public
at the facility. Finding. a cost-effective, affordable space built` to the higher building standards
required for public safety may represent a favorable interim or permanent` solution to the police
department needs. If police facilities were to be located off-site, a counter presence could still be
maintained for police customers at Town Hall.
Direction Needed and Next Steps
The February 12th Study Session represents a critical juncture in the development of the CCMP.
The feedback and direction provided by Council will lead to the final CCMP, to be followed by
.:implementation as determined by Council. Direction is needed on the following issues in order
~to finalize the CCMP:
Vision for the CCMP
x o Does this represent a desirable vision' for the Civic Center site?
o Should the final CCMP include the option with one facility for the library and
community center, or two facilities for these services?
o Other feedback?
■ Phasing Approach
o Should one facility be pursued first? Which one?
p' Should facilities be pursued concurrently?
o Should an off-site facility be pursued for the police department?
■ Financing Options
o Does Council have any comments on potential funding sources, such as the use of
RDA money for eligible facility construction or the option to pursue a bond
measure?
Next Steps
Based on Council's feedback and direction, staff and ABA will finalize the CCMP and return to
Council for final approval. The final CCMP will include:
■ Town Service Assessment
■ Operational Plan
■ Space Program
■ Existing Conditions Analysis
■ Vision for the Civic Center Site (site diagram)
■ Conceptual Cost Model
PAGE 12
MAYOR AND TOWN COUNCIL
SUBJECT: STUDY SESSION:. AND,DIRECTION ON THE VISION, CONCEPTUAL
COSTS, FUNDING SOURCES, AND PHASING OPTIONS FOR THE CIVIC
CENTER/LIBRARY MASTER PLAN
FEBRUARY 8, 2007
■ Phasing Strategy
■ Preliminary Financial Strategy
The CCMP will also include the parking study, with,any changes due to its findings incorporated
into the site vision and the cost model.
At the final CCMP approval stage, staff will seek Council direction on next steps, including
direction to proceed with an in-depth financial analysis. The following two options will be
presented for consideration:
4
NO
Educate then Proceed Option - This option is to undertake an outreach campaign to inform the
community about the CCMP and then to re-assess community support for a bond measure.
Based on the results of the public opinion poll, proceed with the pre-development process,
including schematic design of the Civic Center site with in'-depth focus on the first -phase facility
or facilities.
Proceed and Educate Concurrently Option - This option is to proceed with the pre-
development process, including schematic design of the Civic :Center site with in-depth focus on
the first phase facility or facilities, and undertake an outreach campaign concurrently to inform
the community about the CCMP, followed by re-assessing community support for a bond
measure.
These options will be discussed in greater detail when the final CCMP is:brought forward for
Council's consideration. Included in the discussion will be a description of the pre-development
process, options for consideration, and estimated costs. Staff will also seek Council direction on
any concurrent actions to be undertaken with the above options at this time.
CONCLUSION:
The development of the Civic Center Master Plan (CCMP) has been a long, complex endeavor.
Grounded in the prudent decision to plan for the Town's long-term facility needs, the CCMP is
driven by the services the Town currently provides and the community desires. The CCMP that
has unfolded over time reflects many principles articulated by the Town Council and the
community. Community and Town Council input, and analysis of service needs, space
requirements,'and site considerations have evolved into a master site vision that shows how the
Civic Center site could ultimately accommodate Town services.
Estimated costs indicate that the build-out of the entire CCMP could cost approximately $90
million in today's dollars. The initial public opinion survey suggests that sufficient numbers of
voters would not support a bond measure of that magnitude at this time, although support for a
PAGE 13
MAYOR AND TOWN COUNCIL
SUBJECT: STUDY SESSION AND DIRECTION ON THE VISION, CONCEPTUAL,
COSTS, FUNDING SOURCES, AND PHASING OPTIONS FOR THE CIVIC
CENTER/LIBRARY MASTER PLAN
FEBRUARY 8, 2007
new library is strongest among the potential facilities and satisfaction with the Town in general is
high. The survey results also showed that less than 40% of the respondents have heard of the
CCMP, with 61 % saying they hadn't heard anything about it to-date. The poll conducted for the
CCMP provides valuable benchmark information for the Town as next steps on the CCMP are
contemplated.
r. The nexCsteps for the CCMP include completing the parking study, which will provide more
accurate information about the parking demand at the Civic Center. Council direction on several
issues - the site vision, phasing approach, financing options, and recreation space - is also
needed to complete the CCMP. There are also some critical needs that the Town may need to
pursue concurrently.
The Civic Center Master Plan is a roadmap for the future, enabling the Town Council to make
decisions;about facility improvements to enhance service delivery as necessary or as
opportunities arise. Without the CCMP, these decisions would not be able to be made in such a .
broad context or with such in-depth analysis. Staff looks forward to the Council's feedback and
directionon the CCMP: .
fN
ENVIRONMENTAL ASSESSMENT:
Is not a project defined under CEQA, and no further action is required.
FISCAL IMPACT:
Funds for completion of the Civic Center/Library Master Plan as noted above are included in the
FY 2006-11 Capital Improvement Plan. Any additional work which may be beyond the original
scope or as a result of the Master Plan process will require additional funding.
Attachments:
Attachment 1
-Outreach and Participation Summary
Attachment 2
- Vision for Civic Center Site
Attachment 3 - Space Program
Attachment 4
- Phased Vision for Civic Center Site
Attachment 5
- Conceptual Cost Model
Attachment 6
- Potential Funding Sources for CCMP
Attachment 7
- Key Findings from Los Gatos Voter Survey/Topline Results
Attachment 8
- February 12, 2007 PowerPoint Presentation
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