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11/02/1993 - City Council Special • 40:S7 1 AGENDA SPECIAL CITY COUNCIL MEETING Tuesday November 2, 1993 5:00 p.m. Eagan Municipal Center Building I. ROLL CALL & ADOPTION OF AGENDA II. MUNICIPAL CENTER/PUBLIC SAFETY BUILDING EXPANSION PROGRAM III. OTHER BUSINESS IV. ADJOURNMENT MEMO TO: HONORABLE MAYOR AND CITY COUNCILMEMBERS FROM: CITY ADMINISTRATOR HEDGES DATE: OCTOBER 29, 1993 SUBJECT: SPECIAL CITY COUNCIL MEETING/TUESDAY,NOVEMBER 2, 1993 A Special City Council meeting is scheduled for Tuesday, November 2, 1993, at 5:00 p.m. for the purpose of discussing the Municipal Center/Public Safety Building Expansion Project. A light lunch will be served. Attached is a copy of a memo that summarizes the progress that has been made to date by the City Council, staff and architectural and construction management consultants. City Administrator Attachment TLH/vmd MEMO _city of eagan TO: HONORABLE MAYOR AND CITY COUNCILMEMBERS FROM: CITY ADMINISTRATOR HEDGES DATE: OCTOBER 27, 1993 SUBJECT: PUBLIC SAFETY/MUNICIPAL CENTER BUILDING EXPANSION The purpose of the meeting on Tuesday is to focus on a building alternative for the Municipal Center/Public Safety Building Program. Seven (7) alternatives have been reviewed which include Alternatives 1 through 5 and 4A and 5A. After holding meetings on October 12 and 19 and the field trip on Monday, October 25, Alternatives 4A, 5 and 5A including City Council modifications appear to be the consensus alternatives. Alternative 4A would expand both the police and administrative levels. Alternatives 5 and 5A would provide for a new police facility and remodeling of the existing facility police and municipal center space for administrative office use. The main difference between Alternative 5 and Alternative 5A is that 5A includes a new first level City Council Chambers adjacent to the new south entrance. For schematics and additional descriptions of each option, please refer to Attachment A and the Thorbeck Facility Planning Binder, previously distributed. Background As the Council and staff approach the issues of design, phasing and cost, it is important to bear in mind the work that has been done to date. The effort we are engaged in goes back several years to an analysis of City space needs culminating in the BRW study. As a result of this analysis, discussions and tours of Eagan's facilities and those of other similar communities in the metropolitan area, it became apparent that current space needs for police and administration exceed the current building's capacity. As a consequence, the public safety/municipal center expansion project was included in the City's current Capital Improvements Program. Once the building expansion decision was made by the City Council, the City Administrator empowered employees, through various focus groups, to provide recommendations and input relative to architectural program requirements and service function for evaluation by the architect. The architect prepared schematic designs based on data collected from the employee focus groups which were shared by the steering committee. The steering committee consists of the Project Manager, Doug Reid, department heads and the City Administrator's office. The steering committee met the challenge of consolidating duplications of space which occurred in the focus group process. This included the combination of three physical fitness areas into one physical fitness area, consolidation of training and conference rooms and consolidation of other space needs that were proposed by individual focus groups. Once this information was synthesized and presented to the City Council, a budget was prepared by Mike Stowe that took into consideration new construction, remodeling and the quality of construction proposed by the architect to meet the space needs and desirable functions recommended by the steering committee. One of th€: most enlightening aspects of touring other facilities is the realization that even the indiv {ual office sizes and work spaces proposed for Eagan personnel in the draft architectural program are conservative. By way of reference, Golden Valley had four engineering personnel in approximately 650 square feet or approximately 160 square feet per position. Thorbeck Architects is programming approximately half that much space for comparable positions here, meaning that the same sized space in the proposed expanded facility would accommodate six to seven people in the same space here. Eagan's current work space sizes would accommodate eight or more people in the same space. Council Issues Needless to say, the cost of the proposed building program and design alternatives is a concern shared by the City Council and staff alike. The issue which appeared to be defined by the Council on October 25 was the need to ensure that any improvements be as cost effective as possible, but not to be penny wise and pound foolish. Other issues which were raised on the tour and upon which the Council should come to consensus are: 1. Full Basement under Newly Constructed Facility - Should unfinished space be set aside for future community uses and storage? 2. Council Chambers in Current Location - A number of reasons support the location of a new City Council Chamber near the new lobby entrance while other factors support maintenance of the current location. 3. Extent of Municipal Office Remodeling - The commitment to a P 9 particular expansion scheme will result in varying costs for remodeling existing space to function appropriately for quality customer service and efficient municipal operations. It is also necessary to identify the phasing of such remodeling. 4. Customer Orientation - Efficient access by the public to all essential municipal services by providing lobby counters/entrances to each department. 5. Selection of Quality, Durable, Low-Maintenance Construction and Finish Materials - Slightly higher costs of construction can minimize ongoing maintenance costs while maintaining a quality appearance. Material selection should anticipate some level of flexibility and future remodeling and as such should be durable, but not so durable as to dramatically limit potential remodeling efforts in fifteen to twenty-five years. 6. Building Connection - Efficient staff interaction implies the need for a connection between the two buildings. This may or may not require that the buildings themselves be connected and it may or may not need to be a public portion of the building. 7. Multiple Function Use of Meeting Rooms - Public space and secured space should be planned and oriented to provide for public and off- hour availability of meeting rooms and facilities to the public. 8. Construction Cost - An acceptable range of costs will need to be identified in the context of the architectural program and footprint alternatives. Preferred Concept Plan The decision before the City is to provide direction to the architect to begin the design development of a specific alternative/footprint for the building. The challenge facing the City Council and staff is to maximize the efficiency,future maintenance, employee working environment and service to the public at a reasonable cost. There is always a certain amount of employee motivation looking forward to a building project and a new and enhanced working environment, however, there is a loss of productivity during a remodeling or displacement due to construction. The steering committee has identified pros and cons for the remaining options for consideration by the City Council at the meeting on Tuesday which may assist the decision making process for the building alternative. It is also important to note that there remain many future decisions that will impact the cost of the project as the City Council selects building materials, furnishings, and further decides on architectural details once the design phase begins. The pros and cons are outlined in Attachment B. On the basis of these considerations, the steering committee has identified a number of priorities which can help frame a Council decision. 1. Customer Service - The highest priority should be placed on a design and details which make the facility approachable and easy to use for the typical City customer including both the one time user and the frequent customer. Access to departments and functions should be efficient and obvious and information and directions should be readily available without interfering with functioning departments. The organization also wants the space to be functional enough as the community and organization matures that we serve the customer in 1994 as well as we serve the customer in 1998. 2. Staff Efficiency - The next highest priority should be placed on the productivity and efficient interaction of the employees. Distances between related functions and departments should be minimized and there should be both private and public means of interaction between them as well. The space, furnishings and equipment need to work well for the employee. Staffing makes up about seventy percent of the City's budget and the quality of the environment and tools affect employee productivity and morale. 3. Image - A high priority should also be placed on the external and 9 tY P 9 P internal image of the City and its operations as perceived by the public. The image we project should be on par with, but not exceed, that which we generally expect of our development community. As a public facility the building should project quality and durability. While expensive or excessive finishes and details will project an inappropriate image to the public, inexpensive, high maintenance finishes and details will cost the public more in the long run and project an unkempt, short-sighted image which is extremely detrimental to a public entity. 4. Cost - An equally high priority must be placed on cost since any building project is a balance between needs and budgets. Often, projects are phased or segmented because additional resources will be available for subsequent phases in the future. In the case of the Community Investment Fund, the resources are in place at the present time for the scope of facility the Council deems appropriate to anticipate the City's needs. Substantially greater resources will not be available in the future from this funding source. Therefore, phasing of the project will only affect the time frame within which the actual work will occur. To the extent that any inflation occurs in a period of relatively low interest rates, the present value costs of future improvements is likely to exceed the current costs of the same improvements. 5. Disruption and Dislocation - Each time a building or remodeling project occurs, functions are dislocated and employee productivity is affected. If postponing a segment of the project is considered as a means of diminishing the scope of individual phases, it should be understood that each construction project will cause the same disruption on multiple occassions. For this reason, it is typically advisable to postpone a segment when the need for it is uncertain. Based upon these priorities, the steering committee rated the proposed options as outlined in the matrix which is included in Attachment C. Conclusion As noted, the steering committee analysis resulted in a consensus that Alternative 5A meets the critical criteria the best. While other alternatives could function to varying degrees of effectiveness, each was less effective than 5A in one or more critical areas. This exercise was undertaken to assist the Council in making a final decision relative to the building approach. As noted above, the purpose of the meeting on Tuesday is to identify a preferred building alternative or footprint for the Municipal Center/Public Safety Building Program. Decisions concerning detailed design, finish, function and final budget will occur at subsequent meetings as the building plans take shape. It is anticipated that the Council will undertake a similar exercise similar to that done by the department heads with the assistance of the architect in coming to consensus on the footprint decision. Staff would be happy to provide additional information relative to the work that has gone into this project to date. The architect, construction manager and staff will be present at Tuesday evening's meeting to answer any questions the Council may have. p City of Eagan ATTACHMENT A Municipal Center/Pubic Safety Project October 29, 1993 Alternate #4a This alternative is similar to#4,but maintains Police and City Hall operations while the new wing is being constructed. Police as well as City Hall would have space to year 2010,but will require phasing of constnacdon and move into new and remodeled facilities. it is necessity that detention and communication be constructed in phase one for Pol ice,and Phase Two will require a temporary location for some functions while the existing Police space is remodeled. The largest impact of this alternative is that the entrance to City Hall will remain where it is with a new Police public entry from the south. This does not relate to the overall site concept. Windows into Police at ground level are problematic. This alternative does not include Fire Administration Alternate E The concept is to construct a new Police facility,sized to meet 2010 needs,that is physically linked to the existing building. The existing building will be remodeled(after Police move out)into new facilities for City Hall and Fire Adminlstradcn. Since the existing building is not adequate to meet 2010 needs,a future addition will be planned and located to resolve future space needs. A new entrance to City Hall will be created on the south side which will visually relate to the new Police facility. Excavations and new windows will bring light and views into existing spaces that currently do not have them. Toilets will be upgraded to ADA standards.The toilets on the second floor may be relocated to provide nun direct access to the existing Council Room. A lower level connection is possible to provide interior connection between the lower level of Police to the lower level of City Hall. Alternative #Sg This alternative is the same as#S,but adds a new Council Room directly related to the new public entry from the south. This will allow the existing Council Room to be remodeled for Conference and Office space. The major impact of this scheme is to create a stronger symbol for city government in the overall master plan,greater accessibility,and avoidance of confusion as to which entry the public should use. As a result,future expansion of City Hall for administrative functions can be more easily achieved. Windows into Police Administration we at the second floor which is much better from a security point of view.Basement space under Police can connect to the existing City Hall for shared use of storage and fitness center. Option to expand basement under new Police facility for future use. This alternative(like#5)provides a new Police Facility sized to meet 2010 needs that is physically linked to the existing City Hall on the lower level.Shared common facilities like storage and fitness will be located in the lower level of Police with corridor connections to City Hall. The existing building will be remodeled by phases(after Police move oat)into new/upgraded tacWties for City Hall sad Fire Administration, Courtyards will be constructed to bring light and view into areas currently below grade. Since the existing building is not adequate to meet 2010 needs,future expansion will be planned and located into the remodeling schedule as the need and costs become clearer. Tborbeck Architects Ltd. Minneapolis,MN Prryect No.624 October 29, 1993 6128718088 10-29-93 11 :00AM P003 it06 Adman Mu bars ATTACHMENT B Alternative #Ace • Police can remain in • Does not fit overall master plan concept • operation in existing space • Public entrances on opposite sides of ttncdon building will be during Dons confusing • Can keep existing public • Police laymts limit upper-level plait for Hall entrance m Hall • Urge lobby for City Hall because of Whorled• Windows ground level to Police are oblematic • Pl Department included temporarily, , with move to expansion space in future Alternate #5 • Climate-controlled election • Will require!mare addition to meet between buildings at lower City Han needs level • Requires adding windows to lower • South oriented City Hall can levels to provide light end views maximize ive solar gain • Good parking/entry segregation of staff,public,and secure • Minimal Police disruption during construction • Provides strong public facade Pilot Knob Road • Opportunity for public plaza to provide a civic apace and • Slithering i building easily remodeled for City Hall functions Alternative #Stu • New Council Room as symbol • Requires adding windows to lower levels for City government with to provide light and view better accessibility • Higher initial cost than its • Press up existing Council Room for Community/ Space • Stronger irhpact on overall master plan and image from Pilot Knob Road with dear public entrance/pelting • Connecdoi►between Police and City Hall at basement for shared functions • South orientation with new public enti space focused toward futile community Mtn' • Can phase City Hall tt eingkncpa nsion to meet future needs • Shielding from winter winds Thorbeck Ardnitects Ltd. Minneapolis,MN Project No.624 October 29, 1993 6128718088 10-29-93 11 : 00AM P004 3506 de-JIBE Ie1 NC, CoMM/?ME. glen N4 /DAM;City of Eagan Municipal Center/Public Safety Project ATTACHMENT C $election Criteria Alternativeg 4a S Sa 4. Site/Community Image • Pit with Master Plan concept • Views from Pilot Knob&Westcon • Clear site circulation T + • Usefhhiess by eommunity • Image comparable to quality In Eagan 2. Function/Staff Operations • Department organization CH • Security • Efficiency of operations • Quality of work environment POL a 4-4- ,F 4- • Availability of Staff parking vehicalaa access I. Public/Customer Service • Accessibility to Departments • Image of public service 4,. ,+• • Parking availability • Availability of meeting rooms to public 3. Costs • Balances needs with budges T • Short-tam vs.long-term • Quality and durability 5. Phasing/Space Needs • PolicelDeparrmental operations doting 1) L remodelinglnew construcdon a"' T T • Provide for future expansion Rating Scale: ,++ Excellent + Good 0 Satisfactory Unsatisfactory Thorbeck Architects Ltd. Minneapolis,MN Project No.624 October 29, 1993 6128718088 10-29-93 11 :00AM P001 #06 City of Eagan Municipal Center/Public Safety Project • Selection Criterja Alternatives 4a S Sa 4. Site/Community Image • Fit with Matter Plan concept • Views from Pilot Knob&Westcott • Clear site circulation • Usefulness by community • Image comparable to quality in Eagan rio 2. Function/Staff Operations • Department organization CH • Security • Efficiency of operations • Quality of work environment POL • Availability of Staff parking/vehicular Non 1 . Public/Customer Service • Accessibility to Departments • Image of public service • Parking availability • Availability of meeting rooms to public 3. Costs • Balances needs with budsds • Short-term vs. long-term • Quality and durability S. Phasing/Space Needs • Police/Departmental operations during remodeling/new construction • Provide for future expansion Rating Scale: ++ Excellent + Good 0 Satisfactory - Unsatisfactory 7'horbeck Architects Ltd. Minneapolis, vfr4 Project No.624 October 29, 1993 6128 718088 10-29-93 11 : 00AM P002 3506