11/02/1993 - City Council Special •
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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
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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
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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