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HomeMy WebLinkAboutagenda.council.worksession.20090630m MEMORANDUM THE CITY OF ASPEN TO: Mayor and City Council FROM: Chris Everson, Affordable Housing Project Manager THROUGH: Scott Miller, Capital Asset Director R. Barry Crook, Assistant City Manager ~, DATE: June 26, 2009 MEETING DATE: June 30, 2009 RE: Burlingame II Revised Schedule Summam Staff is recommending a revised schedule for the Burlingame II affordable housing development. Background: Design development for Burlingame II was initially stopped in the spring of 2008 as a variety of outside opinions were being developed for Council and management consideration: / the Citizens Budget Task Force (CBTF) and it's Housing Subcommittee / the Alverez & Mazsal operational audit / the McMahan & Associates financial audit / the Construction Experts Group (CEG), created by the City Manager to review and recommend changes in how the City approached the development of affordable housing projects. The City Council then placed a referendum question on the November ballot to discern community interest in increasing the unit count at Burlingame from 236 total units to "up to 300 units." This passed by a vote of 56% to 44%. As a result of these events, we have been in negotiation with the Burlingame Condominium I HOA boazd since Januazy over a proposal to increase the unit count The intent is to take a final proposal to a vote of the homeowners in mid-July which will determine the final unit count for development at Burlingame and allow our development team to finalize the design. and drawings for the next phases of development. Previous Council Action: On July 28, 2008, under Resolution 69-2008, the Council accepted and adopted the recommendations from the Citizen Budget Task Force regazdmg the Affordable Housing Program and planning for Burlingame Phases 2/3. At a Worksession on Mazch 17a', the Council presented the City's offer to the public and took comments -including many comments from Burlingame homeowners. Page 1 of 3 Diseussion• As a result of the CEG recommendations approved by the City Council, staff planned to execute the Integrated Project Delivery (IPD) which entails the hiring of a program manager, a design team, a contractor at risk and a commissioning agent. Both the Burlingame II design and a GMP bid for the construction of the project were to be developed by end of August 2009 so that City Council could have a "bid-in-hand" to make a decision on whether or not to approve a November 2009 ballot question for funding the construction of Burlingame II. Since then: `3 / Potential Burlingame II housing partners Pitkin County, Aspen School District, Aspen Valley Hospital, Music Associates of Aspen, Aspen Skiing Company and Aspen Art Museum have indicated that a desire for more information about the project and internal decision-making makes a 2010 timeframe for commitment to the project better for them. / During the HOA density negotiations, Council made cleaz the imperative nature of treating the HOA process with the utmost care and giving that process the time that it deserves. / Given the current economic climate, the forecasted climate at a November bond election, and the need to finalize unit counts for the fmal Burlingame development and conduct a vote of BG homeowners prior to giving a green light to azchitectural work, Council has determined that any possible bond election would be pushed out to November 2010. Due to these changing conditions the schedule for Burlingame II needs to be reconsidered. Staff Recommendation: Staff is proposing a schedule change that is intended to help with these concerns. One approach that was suggested was to do nothing in 2009 and resume the IPD effort in 2010 with carry-forward funds from 2009. However, since we would like to once again approach potential Burlingame II housing partners for funding in 2010, staff cannot recommend this option because we would still not have designs to show our potential Burlingame II housing partners, and we would not have a comprehensive budget based on those designs that the partners could use for decision-making. Because of this, staff is recommending that we bring the design of Burlingame II through conceptual and schematic design in 2009 (essentially about 1/3 of the way through the design process), and we develop a comprehensive construction budget based on that schematic design. This could be done by the end of 2009 and is estimated to cost approximately $1.SMM. This effort will provide valuable information that can be brought to potential Burlingame II housing partners in 2010 in the pursuit of funding from those potential partners. In 2010, staff would pursue the completion of the IPD process by summer 2010, which would bring the schematic designs through completion and would entail (as originally planned) the development of a GMP bid for construction which Council may then consider for funding purposes (i.e. whether or not to put a bond funding question on the November 2010 election ballot.) The attachments included provide additional information about the originally intended 2009 IPD effort (schedule and projected expenditures) as well as the revised plan that is herein recommended (schedule and projected expenditures). Page 2 of 3 Financial Implications: When budgets for 2009 were developed during the summer of 2008, the IPD process had not yet been conceived. The 2009 budget for Burlingame II design was set at $1,176,320 and it was assumed that a supplemental request would likely be necessary. In order to pursue the revised schedule/plan recommended herein, a supplemental funding request in the amount of $323,680 will be necessary to bring the 2009 budget up to $1.SMM. Proposed Next Steps: Supplemental request of $323,680 and implementation of the plan described in this memo and additionally described in attachments C and D. Recommendation: City Council approval of the plan described in this memo and additionally described in attachments C and D. City Manager Attachments: Attachment A -Originally intended Burlingame II 2009 IPD process and construction schedule Attachment B -Originally projected expenditures for Burlingame II 2009 IPD process Attachment C -Revised recommended Burlingame II IPD process and construction schedule Attachment D -Revised projected expenditures for Burlingame II IPD process (for 2009 and 2010) Page 3 of 3 N H ro x U W G' O .~ U N J-1 w i'. O U b G' w m N U O S-I a A a H 0 0 N H H ~i ri 31 GQ ro ro C UI a~ q .~ rl rl ro C .~ in .~ O i~ t". UJ x U ro 11 I - ~ ~ i I i I i I I i I ~ R j I I i i ~ I I 'S I a f .. _._ _ ' _ - i .... . I. __ { I .__~..._ _ _ ~'-'- m CI _ ' I I ~ ' I i I i I I I I I I I r f o g - I I II I I I I I f- i ~ ~~ I I I ~ __ i ~ I, f._ I { . r ~~ LL ° ~ - I i --- - I I .._ II I _. i ~ I ~ ~ ' , ~ Ia ~ 'E a I , I ~ I I i I i II _.. _ ' _.. ._ j I __... _._ -~-- - ~ I - j - --~ ~-~~-- R f I I I I I ' d 19 ' ! .~ I ~ I _ _ _- I I .. _.. ._ ~ _ . 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Barry Crook, Assistant City Manager DATE: June 30, 2009 MEETING DATE: June 26, 2009 RE: Update of the Implementation of Housing/Burlingame Recommendations from Citizen Budget Task Force, Alverez & Marsal, McMahon & Associates, and the Construction Experts Group Summarv• City staff has been working to implement the various recommendations of the Citizen Budget Task Force, the Alverez & Mazsal Operational Audit of Burlingame/Housing Development, and the McMahon & Associates Financial Review of Burlingame. One of those recommendation calls for a regulaz update to the City Council on progress towazds implementing the various recommendations. Attached is the list of all recommendations and status/comments for each. Previous Council Action: On July 28, 2008, under Resolution 69-2008, the Council accepted and adopted the recommendations from the Citizen Budget Task Force regarding the Affordable Housing Program and planning for Burlingame Phases 2/3. Audits on Burlingame and the City's development function were received by the City Council from Alvarez & Mazsal and McMahon & Associates on July 29, 2008. In an November 18`~ worksession we went over the recommendations, laid our responsibility for implementation and got direction on those recommendafions that needed some policy direction from Council. Discussion• There were 75 recommendations from the two external audits (Alvazez & Mazsal and McMahan & Associates) and the Citizens Budget Task Force. Not all of the 75 represented an unduplicated count of recommendations as many of the recommendations aze repeated in substance (if not form) 1 between the three recommending entities and many of A&M's recommendations constitute steps towazds implementing other recommendations. The City received recommendations from a variety of groups regazding the following azeas: • Strategic planning and demand analysis for the housing program • Financial and management control systems • Compliance and incentives • The C ~ty4'. ~o~ ganizational structure for its development function, staffing, policies and procedures • Technological support systems for managing the City's construction programs • Technological support systems for construction management, budgeting and accounting and the associated software selection • Communication planning • The development delivery model used for housing program construction • Review of development plans for Burlingame Phases 2 & 3 • Creating a higher density alternative for future Burlingame construction; and • Examining alternative models for development of affordable housing units into the future. For purposes of organizing our work, we have grouped the recommendations into the following areas: / Restructure/redesign the development function (9 individual recommendations) / Leverage external service providers to support long range plans (1 recommendation) / Establish a development function separate from Asset Management and create guidelines or policies to provide the development function with the necessary authority to manage the planned large-scale developments and define reporting relationships of the function within the City hierazchy (6 recommendations) / Staff the development function with existing City project managers where possible and recruit additional resources with critical skill sets where necessary (7 recommendations) / Develop policies, procedures, tools and templates to aid development staff in accomplishing the department's responsibilities (8 recommendations) / Select and implement technologies which support construction program administration - planning, budgeting, scheduling, accounting, analyzing and reporting (6 recommendations) / Develop a communication plan for future development projects (6 recommendations) / Retain third-party service providers to supplement and compliment existing City resources as needed (6 recommendations) / Determine the Development Delivery Model to be used going forwazd - or consider this a project-by-project decision and make a decision for the next project (3 recommendations) / Contract benchmazking and consider changes to contract language -somewhat dependent on the Development Delivery Model chosen (3 recommendations) / Demand and supply dynamics of affordable housing (1 recommendation) / Learning organization (3 recommendations) / Compliance issues for APCHA policies (4 recommendations) / Citizen oversight (1 recommendations) / Systems and procedures (1 recommendation). / Burlingame and future AH project development (2 recommendations) / Financial and management control systems (8 recommendations) Status of Imnlementation: We feel good about the pace of implementation of the various recommendations, and would summarize our efforts by pointing to the following milestones/status comments: - Creation of "Development Department" -Capital Asset Management Department - Capital Asset Administrator position has been frozen due to budget constraints -slowing some implementation efforts - Use of "Owner's Agent" for new lazge and mid-sized projects (BG2 and Wheeler) - Development of "policies, procedures, tools and templates" underway - CIPAce softwaze to support construction program administration has been evaluated, selected, purchased and is in process of being implemented ...will be used for planning, budgeting, scheduling, accounting, analysis and reporting of projects - Roles and responsibilities of CAM Department has been delineated -existing staff have defined roles and responsibilities for projects and city assets - Integrated Project Delivery (IPD) model selected. AIA IPD contracts selected, reviewed and altered for use by COA by CAM Dept., outside counsel, and City Attorney ...Ready for use at BG II and Wheeler. - The Housing Frontiers Group has been formed and is actively pursuing new ideas such as potential optional financial incentive programs to allow existing AH residents to downsize, sell, bridge to free-mazket, etc; and to explore providing loan support programs for bridging to free market ownership for AH and free-mazket renters. - APCHA Boazd will continue to take the lead on compliance issues/effort for the housing program In terms of the following recommendations, we can report our success, this progress and our concerns: • "Study and incorporate BG development options by CEG as to: construction methods, public/private partnerships that lessen public subsidies, density increases in terms of both sizing of units and number of units, more economical finishes that utilizes the City's buying power or allows for owner purchased upgrades." Done for BG PH2. Was fed into BG HOA negotiation. Results pending. The City has also released a PPP RFQ for 802 West Main Street and 517 Pazk Circle to explore development options that may entail less public subsidies for those sites. ^ "Employer Sponsored Analysts of Current and Expected Housing Demand/Supply and Proposals for Public/Private Partnerships. " We are currently relying on data from the 2008 RRC survey of employers that was conducted by APCHA in May/June 2008. Also relying paztially on APCHA's actual bid data from Jan 2008 through Spring 2009. ^ "Establish Public Policy Review Committee whose Purpose is to advise on major Capita[ spending prior to legal commitments. " Financial Advisory Boazd established with 3 members. They are currently reviewing the financing of Wheeler Opera House expansion. ^ "Council to direct staff to develop and implement a routine, semiannual reporting procedure for Council and the public on progress on large capita[ projects against the initial budget including revenues." Done --Capital projects status is to be reported quazterly. ^ "Analyze the bonding capacity proposals of the Director of Finance regarding: (1) Housing Fund's ability to absorb any proposed subsidy for any AH project, (2) capacity of the City to service any debt jor BG 2/3, BMC West and any other proposed AH project, and (3) Council to make final recommendations with full awareness of, and publicity to voters of, relationship to reasonably anticipated future funding needs and capacity for BG and other projects as well as other major capital improvements. " Will be done in 2010 -- Bond question will be November 2010 at the eazliest. "Council establish a written policy and guidelines for AH subsidies for current and future AH projects. This policy to acknowledge a connection between subsidy levels and financial capacity of a AHproject and possible overall impact on Ci[y's ftnancaa[ condition." An analysis of the per unit subsidy for every affordable housing project will be part of the discussion for every project that comes forwazd to Council. We will need to deal with the conflict between a desire to lower subsidies and AACP direction to create higher quality developments. Where will that balance be struck? Summarv• We feel substantial progress has been made towazds implementing the recommendations, pazticulazly for those high-profile items that aze critical for quality improvement of our methods of managing construction in general and that of our affordable housing program in particulaz. - New systems for budgeting/accounting/reporting aze in place for use beginning in FY 2010 - New deparhnent /new leadership in place - New development management model in place for projects going forwazd - Capital Program Administrator position frozen due to budget constraints - FAB in place and has begun regulaz meetings - Partnerships -public/public and public/private being pursued to advance housing creation 4 - Development of Affordable Housing Action Plan to be undertaken in 2009 for use by staff- will be done with wide stakeholder involvement Attachment A: Matrix for Implementation Plan d 0 -~ d N O J of mm9 'F ~ ? v tns ~o aa~i ~ 3~ x' nfr;c -°~~ m a ~ w ' m tc ~ ~ w y y c ~ 3 ~ .7.,~ ~.~ . r: '' ®. _~ ' 'o w ~ w A w w N w. ~ ' m m ~< ~ m ~v `"'~ ~1p a< ~p m~ ;: c _ ~'~~ f ~' p~ cm a~ ~ -~ a m ' m ~ ~ -OO ~ '~ `'a N~ X N ~ (D ~ x N N ~ '. 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