FOR COUNCIL MEETING OF:

AGENDA ITEM NO.:

PUBLIC WORKS FILE NO.:
TO: q_1Tr COUNCIL

FROM: ROBERT D. CHANDLER, PH.D., P.E.,
INTERIM PUBLIC WORKS DIRECTO
December 5, 2011
7 (c)
SUBJECT: PUBLIC SAFETY FACILITY
ALTERNATIVE SITE ANALYSIS FINDINGS
ISSUE:
To inform Council of the status of the alternative site analysis for the proposed new
Public Safety Facility.
RECOMMENDATION:
Information only.
BACKGROUND:
The Civic Center facility was constructed in 1972. Over time, government services have
outgrown the facility. As a result, several functions are located offsite due to the
existing facility's constraints. In addition, the facility is seismically inadequate,
especially with respect to standards for emergency response facilities such as the
Police Department. As the building ages, concerns have been raised about the facility's
energy efficiency and annual operating cost. In 2010, pursuing a bond measure for a
new police facility was incorporated into Council goals. Another 2010 Council goal
focused on assessing and prioritizing improvements for City facilities to develop a
multi-year approach to addressing public infrastructure needs.
Sustainable Cities Initiative. For the 2010-11 academic year, the City of Salem was
selected 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 of
disciplines. For the Civic Center and Police Facility Options project, architecture
students developed options for a new Public Safety Facility located on the Civic Center
campus. The City also hired a consultant team of professional architects to support the
project by: 1) providing an initial analysis of the site; 2) developing programming
requirements for the new Public Safety Facility and the existing Civic Center building;
3) providing professional review of the student work; and 4) synthesizing student output
into a preferred alternative and conceptual design.
Council Subcommittee Review at Key Milestones. On August 9, 2010, a Council
subcommittee was formed to engage in the project at key milestones. The
subcommittee includes the Mayor, Councilors Clem and Tesler, and two community
members currently representing the Salem Keizer Chamber of Commerce and the
Community Policing Advisory Committee. The subcommittee met six times through
Public Safety Facility
Alternative Site Analysis Findings
Council Meeting of December 5, 2011
Page 2
April 20, 2011, to consider whether a new Police Department facility could fit within the
existing Civic Center campus. Relying on input from the SCI students and the local
design team, the Council subcommittee found the Police Department's needs could
feasibly be accommodated with construction of a new facility on the Civic Center
campus. The subcommittee also agreed that it would be useful to consider alternative
sites for cost comparison with the Civic Center site before proceeding with development
of a bond measure to fund the project. The City Council approved a funding request for
the alternative site analysis on May 23, 2011.
FACTS AND FINDINGS:
The intent of the alternative site analysis is to develop cost estimates for three different
types of potential sites for the new Public Safety Facility to compare with the costs
already developed for the Civic Center site. Staff used the attached list of site selection
criteria to develop a list of potentially available sites in Salem (Attachment 1 ). The
Council Subcommittee met on August 8, 2011, to consider the list and selected three
sites that best fit the selection criteria. The sites selected from the list were intended to
serve 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 due
diligence 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 urban
redevelopment site (Attachment 2), a bare land site (Attachment 3), and a site with an
existing building for retrofit (Attachment 4).
A conceptual site plan and cost estimate for each of the three alternative sites along
with an analysis of the more intangible benefits and difficulties associated with each one
is included in the attachments. The conceptual site plan and estimate for the Civic
Center site is also attached (Attachment 5). The Civic Center concept includes seismic
upgrades to the existing Civic Center building, renovation of the existing part of the
building occupied by Police, and other alterations to the Civic Center campus. For
equal comparison between the sites, the $19.4 million cost of these Civic Center
improvements was also included in the alternative site cost estimates. The City faces
this cost liability at the Civic Center site regardless of the site chosen for the Public
Safety Facility. The estimated costs for each site are as follows:
Site
Urban Redevelopment Site
Bare Land Site
Existing Site Building Retrofit
Civic 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 2011
dollars for comparison. The final cost estimate for the selected site should include the
best available estimate of inflation. The primary difference between the Civic Center
site and the alternative sites is the underground parking included in the Civic Center
concept, which costs about $9 million more than the at-grade parking made possible by
JP!TLC: G:\Group\director\Judy\Council201 !\December 5\PublicSafetyFacilityAlternativeSiteAnalysis.doc
Public Safety Facility
Alternative Site Analysis Findings
Council Meeting of December 5, 2011
Page 3
more abundant land area at the alternative sites. However, this difference is partially
offset by the land acquisition cost of the alternative sites, which is approximately
$4 million.
The Council Subcommittee met to discuss the alternative analysis findings on
November 1, 2011. In addition to the attached information, the subcommittee also
discussed the additional annual operational costs that would arise from moving the
Police Department to an offsite location. Operational cost increases would include
considerable additional labor and fleet expenses for Police staff travelling back and forth
to the Civic Center for court and meetings with other City departments. Other City staff
would also require additional travel and fleet expenses to meet with Police at their new
facility and there would be an incremental increase in facility maintenance costs for a
new remote facility compared to a facility located close to other City buildings. In
addition, acquisition of an alternative site would remove it from the property tax rolls and
reduce annual property tax revenue. The subcommittee found that the increased
operational costs and overall benefit of the central Civic Center site outweighed the
increased initial capital cost of construction. At their meeting, the subcommittee
recommended that City Council authorize proceeding with final development of the Civic
Center 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 the
alternative site analysis findings. If Council subsequently authorizes continued
development of the Civic Center concept for the Public Safety Facility, next steps will
include refinement of the conceptual plan, project renderings, update of the cost
estimate, and development of a public information program with strategic use of public
polling. Completion of these tasks would allow for a potential bond measure to fund the
project as soon as 2013.
Prepared by: Allen Dannen, P.E., Engineering Program Manager
Attachments:
1. Alternative Site Criteria for Selection
2. Urban Redevelopment Site
3. Suburban Bare Land Site
4. Existing Building Retrofit Site
5. Civic Center Site
Wards: All
November 22, 2011
JPffLC: G:\Group\director\Judy\Counci12011\December 5\PublicSafetyFacilityAlternativeSiteAnalysis.doc
ATIACHMENT 1
CITY OF SALEM PUBLIC SAFETY FACILITY
ALTERNATIVE SITE CRITERIA FOR SELECTION
COUNCIL SUBCOMMITTEE MEETING
SITE SIZE
4 TO 10 ACRES
BUILDING SIZE
APPROX. 75,000 SQUARE FEET (3 STORIES IS OPTIMUM)
PARKING NEEDS
APPROX. 210 SPACES
ACCOMMODATION FOR SECURE FLEET PARKING, PUBLIC
AND EMPLOYEES
LOCATION
GEOGRAPHY- TRAVEL TIME TO CITY HALL/COURT
ARTERIAL ACCESS PREFERRED
PREPARED BY
NOVEMBER 1, 2011
PUBLIC VISIBILITY
EMERGENCY RESPONSE
FREQUENCY/LOCATION OF CALLS FOR SERVICE
NEIGHBORHOOD COMPATIBILITY AND IMPACT TO
EXISTING BUSINESS
OTHER CONSIDERATIONS
PAST USES
URBAN RENEWAL/REDEVELOPMENT POTENTIAL
REMOVING PROPERTY FROM THE TAX ROLLS
PROPERTY UNDER STATE OWNERSHIP
ENVIRONMENTAL/PERMITTING ISSUES (I.E. WETLANDS)
REUSE OF EXISTING BUILDINGS
WITH
CBITwo ARCHITEcTs
Create. Build.
ZGF
ZIMMER GUNSUL FRASCA ARCHITECTS UP
ATTACHMENT 2
CITY OF SALEM PUBLIC SAFETY FACILITY
[URBAN] REDEVELOPMENT SITE
NOVEMBER 1, 2011
SUMMARY
THE 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
COSTS
CONSTRUCTION COSTS TOTAL $46,552,912
MARGIN & ADJUSTMENTS (INCLUDED IN TABLE)
GENERAL CONDITIONS
BONDS & INSURANCES
OVERHEAD & PROFIT
PROJECT CONTINGENCY
SOFT 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) $250,000
TESTING AND INSPECTION FEES $400,000
FIXTURES, FURNISHINGS, AND EQUIPMENT 5.0%
BOND ISSUANCE EXPENSE 1.5%
SOFT COSTS TOTAL $9,262,289
PROJECT 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)
WITH
CBITwo ARCHITECTS
ZGF
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[URBAN] REDEVELOPMENT SITE
s ~ c o
EB
IVD,(JI?y
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100' 200' 300'
sss -- proposed property lines
~
PROJECT GROSS SF COST/SF TOTAL
A POLICE HEADQUARTERS
A1 ON-G (188 SPACES) 85,250 $16 $1,364,000
A2 3-STORY NEW BUILDING 74,000 $278 $20,572,000
A3 1-STORY SALLY PORT & OVERSIZED VHCL. PARKING 7,500 $135 $1,012,500
8 SITE WORK
81 DEMOLITION 66,850 $16 $1,069,600
82 SITE IMPROVEMENTS (ON-SITE AND OFF-SITE) 49,084 $38 $1,865,192
C1 PURCHASE PRICE (APPROX. 3.6 ACRES) $4,350,000
D CITY HALL UPGRADES
D1 SEISMIC UPGRADES (OCCUPANCY CATEGORY 3) $4,637,620
D2 PARKING STRUCTURE SEISMIC UPGRADES $2,428,000
D3 DEMO COUNCIL CHAMBERS AND ATRIUM ROOF 24,500 $40 $980,000
D4 BASEMENT TENANT IMPROVEMENT 27,000 $33 $891,000
D5 FIRST FLOOR TENANT IMPROVEMENT 35,000 $173 $6,055,000
(AT CIVIC CENTER SITE)
PROJECT TOTAL $55,815,201
ATTACHMENT 3
CITY llF SALEM PUBLIC SAFETY FACILITY
[SUBURBAN] BARE LAND SITE
NOVEMBER 1, 2011
SUMMARY
THE 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
COSTS
CONSTRUCTION COSTS TOTAL $47,612,604
MARGIN & ADJUSTMENTS (INCLUDED IN TABLE)
GENERAL CONDITIONS
BONDS & INSURANCES
OVERHEAD & PROFIT
PROJECT CONTINGENCY
SOFT COSTS
ARCHITECTURAL/ENGINEERING FEES
CITY PROJECT MANAGEMENT COST
PERMIT 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 $9,458,332
PROJECT 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)
WITH
CBITwo ARCHITECTS
ZGF
Create. Build. ZIMMER GUNSUl FRASCA ARCHITECTS UP
PROJECT GROSS SF COST/SF TOTAL
A POLICE HEADQUARTERS
PARKING (308 SPACES) 114,394 $16 $1,830,304
A2 2-STORY NEW BUILDING 74,000 $278 $20,572,000
A3 1-STORY SALLY PORT & OVERSIZED VEHICLE PKNG. 7,500 $135 $1,012,500
B SITE WORK
81 DEMOLITION
82 SITE IMPROVEMENTS (ON-SITE AND OFF-SITE)
127,606 $30 $3,828,180
N
C1 PURCHASE PRICE (APPROX. 14 ACRES) $4,050,000
D CITY .HALL UPGRADES
D1 SEISMIC UPGRADES (OCCUPANCY CATEGORY 3) $4,637,620
D2 PARKING STRUCTURE SEISMIC UPGRADES $2,428,000
D3 DEMO COUNCIL CHAMBERS AND ATRIUM ROOF 24,500 $40 $980,000
D4 BASEMENT TENANT IMPROVEMENT 27,000 $33 $891,000
D5 FIRST FLOOR TENANT IMPROVEMENT 35,000 $173 $6,055,000
CHAMBERS (AT CIVIC CENTER SITE)
CONSTRUCTION TOTAL $47,612,604
SOFT COSTS $9,458,332
PROJECT TOTAL $57,070,936
ATTACHMENT 4
CITY OF SALEM PUBLIC SAFETY FACILITY
EXISTING BUILDING SITE
NOVEMBER 1, 2011
SUMMARY
THE DEVELOPMENT OF A TWO-STORY ADDITION OF 44,000 SQUARE FEET TO AN EXISTING ONE-STORY 30,000-SQUARE FOOT
BUILDING. THE DEVELOPMENT WOULD ALSO INCLUDE ON-GRADE PARKING. THIS SITE WOULD INCLUDE THE ACQUISITION
OF 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/NEW
CONSTRUCTION)
DISPLACES EXISTING BUSINESSES
POOR LOCATION RELATIVE TO CITY HALL
COMPLEX SITE ACQUISITION
HIGHER POTENTIAL FOR HAZARDOUS
MATERIAL ABATEMENT
PROPOSED PARKING:
ON-GRADE
TOTAL
PREPARED BY
210
210
COSTS
CONSTRUCTION COSTS TOTAL $44,585,300
MARGIN & ADJUSTMENTS (INCLUDED IN TABLE)
GENERAL CONDITIONS
BONDS & INSURANCES
OVERHEAD & PROFIT
PROJECT CONTINGENCY
SOFT 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) $250,000
TESTING AND INSPECTION FEES $400,000
FIXTURES, FURNISHINGS, AND EQUIPMENT 5.0%
BOND ISSUANCE EXPENSE 1.5%
SOFT COSTS TOTAL $8,898,281
PROJECT 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)
WITH
CBITwo ARCHITECTS
ZGF
Create. Build. ZIMMER GUNSUL FRASCA ARCHITECTS LLP
E&
100' 200' 300'
MNN p...cct.SS s\Rt.f"l
_.._ proposed property lines
PROJECT GROSS SF COST/SF TOTAL
A POLICE HEADQUARTERS
A2 NEW BUILDING 44,000 $278 $12,232,000
A3 EXISTING BUILDING RENOVATION 30,000 $238 7,140,000
A4 1-STORY SALLY PORT & OVERSIZED VEHICLE PKNG. 7,500 $135 1,012,500
8
81 DEMOLITION 40,000 $16 $640,000
82 SITE IMPROVEMENTS (ON-SITE AND OFF-SITE) 42,340 $42 $1,820,620
c
C1 PURCHASE PRICE (APPROX. 4 ACRES) $4,050,000
D HALL UPGRADES
D1 SEISMIC UPGRADES (OCCUPANCY CATEGORY 3) $4,637,620
D2 PARKING STRUCTURE SEISMIC UPGRADES $2.428,000
D3 DEMO COUNCIL CHAMBERS AND ATRIUM ROOF 24,500 $40 $980,000
D4 BASEMENT TENANT IMPROVEMENT 27,000 $33 $891,000
D5 FIRST FLOOR TENANT IMPROVEMENT 35,000 $173 $6,055,000
CONSTRUCTION TOTAL $44,585,300
SOFT COSTS $8,898,281
PROJECT TOTAL $53,483,581
ATTACHMENT 5
CITY OF SALEM PUBLIC SAFETY FACILITY
CIVIC CENTER SITE
NOVEMBER 1, 2011
SUMMARY
THE DEVELOPMENT OF A 3-STORY, 74,000 SQUARE FOOT NEW PUBLIC SAFETY FACILITY ALONG WITH A 2-STORY
UNDERGROUND PARKING GARAGE. THIS WOULD INCLUDE THE REMOVAL OF THE EXISTING CITY HALL CANOPY, COUNCIL
CHAMBERS, AND 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 EXISTING
CITY PROPERTY
CONS
INCREASED COSTS ASSOCIATED
WITH UNDERGROUND PARKING
TO MEET PARKING NEED
PROPOSED PARKING:
UNDERGROUND POLICE (A1) 255
ON-GRADE
TOTAL
(NET GAIN OF 108 STALLS)
PREPARED BY
102
357
COSTS
CONSTRUCTION COSTS TOTAL $50,749,218
MARGIN & ADJUSTMENTS (INCLUDED IN TABLE)
GENERAL CONDITIONS
BONDS & INSURANCES
OVERHEAD & PROFIT
PROJECT CONTINGENCY
SOFT COSTS
10.0%
2.5%
5.0%
12.0%
ARCHITECTURAL/ENGINEERING FEES 10.0%
CITY PROJECT MANAGEMENT COST
PERMIT FEES (ESTIMATED LUMP SUM)
TESTING AND INSPECTION FEES
2.0%
$250,000
$400,000
FIXTURES, FURNISHINGS, AND EQUIPMENT 5.0%
BOND ISSUANCE EXPENSE 1.5%
SOFT COSTS TOTAL $10,038,605
PROJECT TOTAL $60,787,823
(SEE COST BREAKDOWN TABLE ON REVERSE SIDE.)
ADJUSTED ESCALATION TO 3Q 2015 COULD BE 8% TO 12%
($4,863,000 TO $7,295,000)
WITH
CBITwo ARCHITECTS
ZGF
Create. Build. ZIMMER GUNSUL FRASCA ARCHITECTS UP
CIVIC CENTER SITE
100' 200' 300'
PROJECT GROSS SF COST/SF TOTAL
A POLICE HEADQUARTERS
A1
BASEMENT PARKING
101,000 $114 $11,514,000
(255 SPACES, 4 OVERSIZED, SALLY PORT)
A2 ABOVE GRADE BUILDING 74,000 $278 $20,572,000
8 .SITE WORK
81 DEMOLITION ($980K CCI ATRIUM+ $1.65M PARKING) $2,630,000
82 SITE IMPROVEMENTS $3,121,598
D CITYH.ALL UPGRADES
D1 SEISMIC UPGRADES (OCCUPANCY CATEGORY 3) $4,637,620
D2 BASEMENTTENANTIMPROVEMENT 27,000 $33 $891,000
D3 FIRST FLOOR TENANT IMPROVEMENT 35,000 $173 $6,055,000

$50,749,218
$10,038,605
PROJECT TOTAL $60,787,823