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HomeMy WebLinkAbout1995 10-30 CCP Special Work Session OCTOBER 30, 1995 . 6:00 p.m. The October 30 1995, City Council meeting was cancelled. • CITY COUNCIL AGENDA CITY OF BROOKLYN CENTER October 30, 1995 7:00 p.m. Special Work Session 1. Call to Order 2. Roll Call 3. Capital Improvement Program Presentation 4. Adjournment • MEMORANDUM October 27, 1995 TO: Mayor Kragness Councilmember Carmody Councilmember Hilstrom Councilmember Kalligher Councilmember Mann FROM: Cam Andre, Interim City Manager SUBJ: Capital Improvement Needs and a Potential Bond Issue Ron Boman, Charlie Hansen, Scott Kline, and Diane Spector have been working for some time to review upcoming major capital outlay needs and develop a recommended strategy for meeting those needs. Much of the information in this report has been presented to City Councils • previoulsy. In recent months a recurring theme has emerged as the Council, staff, and community review the future of Brooklyn Center. That theme is the need to take positive steps to foster a renewal and reinvigoration of the City. It is important to bear in mind that Brooklyn Center is at a particular stage in its municipal life when not only must it consider renewing housing, commerce, and programs, but it must also consider reinvesting in its public facilities. We are beginning a part of that oal b implementing a comprehensive, g Y rehensive systematic street and utility rehab/replacement P g P � Y tY program, our Neighborhood Improvement Program. At the same time, most of our municipal buildings were built about 25 years ago, and are in need of remodelling, refurbishing, or expansion. Some of this need stems simply from age, such as worn out or obsolete mechanical systems. Some of this need stems from changing programmatic needs, some from simple growth. Regulations, building code, and safety requirements change over the years, and public buildings and facilities are not exempt from these requirements. Most of the major facilities in our parks were constructed or rehabilitated fifteen years ago. While we are working to incorporate park improvements into the Neighborhood program, some residents have expressed a desire to refurbish the parks "ahead of schedule," and indeed, some of the park facilities won't last the twenty years it will take to address all our street and utility needs. • NEEDS Each of the major need items have been identified for consideration eration m the Capital Improvement Program (CIP). The needs descriptions identifies those items which are mandated improvements; these are projects which the City must do. The "Driving forces" identified for each item shows that while many of the listed projects may not be mandated, there are code, gender equity, and health issues at stake. Simple age and maintainability is the reason other improvements are up for consideration. Very few of the items on the list would provide for an expansion of our programming. • • Page 2 City of Brooklyn Center Major Capital Outlay Needs 1. City Hall underground storage Two tanks located under City Hall front steps and tank removal & accessible drive must be replaced by 1997. Used to store fuel entrance (tank removal mandated) oil for generator and alternative fuel source for burners. Substantial operating cost deduction for heating for being on interruptible service. Accessible entrance an ADA need. 2. Remodel wading pool Health Department regulations require each pool to (mandated) have its own filtration system. Also, surface around pool not constructed to current regulations. Mandated by 1997. 3. Garage fuel tank replacement Underground storage tank regulations require that three (mandated) current fuel tanks must be removed and replaced by 1997. 4. Police improvements (jail Several concerns: jail improvements mandated, cannot improvements mandated) be accommodated by remodelling in existing area. General space needs. Improved facilities for female officers. • 5. Civic Center HVAC Aging system needs replacement, would improve energy efficiency. Replacement could be rolled into a Police addition, but if a new building is built off -site, would be required in addition. 6. Replace playground equipment Parks where playgrounds have not yet been replaced include: Bellvue, Grandview, Happy Hollow, Garden City, Brooklane, Kylawn, Wangstad, West Palmer, East Palmer, Riverdale, and Marlin. 7. East Fire Station needs Basic needs include: additional apparatus space; additional office /training space, additional storage, additional sleeping quarters; improved facilities for female firefighters. 8. West Fire Station needs Basic needs include: additional apparatus space; additional office/training space, additional sleeping g P � P g quarters; improved facilities for female firefighters. I 9. City Hall roof Existing roof is 25 years old, leaks, has low insulation • value. Needs replacement. Page 3 10. Miscellaneous park Major items include: replacement of ballfield /rink improvements p lights at Evergreen, Grandview, and Kylawn($250 - • 300,000); replace bleachers $50,000 ; renovation of P ( ) Plaza pond /boardwalk ($50,000); upgrade various tennis & basketball courts ($200,000); add trail lights, expand parking, replace park signs, arboretum ponds, improve landscaping (est cost ? ? ?) 11. Warming houses & picnic Consider new warming houses at Northport, Kylawn, shelters Willow Lane, Evergreen. Remodel existing at Grandview, Garden City. Replace houses with or add picnic shelters at Bellvue, Happy Hollow, W Palmer, E Palmer, Nature area, Orchard Lane, Riverdale 12. Community Center Small addition to locate new elevator, relocated stairs, accessibility improvements ents al ty p so remodel relocated restrooms for accessibility 13. Replace phone /data Replace aging, obsolete phone system and recable buildings for phone /data 14. Upgrade radio system Upgrade both police and public works radios to 800 trunk service. Public utilities would contribute funding for SCADA and INTRAC replacement 15. Upgrade Council Chambers hers Improve lighting, sound, cablecasting equipment 16. Addition to Community Add space for additional community rooms for small Center meetings, parties, and senior activities. 17. Ice arena/youth activities In cooperation with school districts, participate in the center construction of an ice arena which would also include facilities for youth activities. 18. New park facilities Develop the Joslyn site with ballfields, playgrounds, and picnic areas; complete the Twin Lake trail loop (or the BC portion) 19. Family pool Construct an addition to Community Center; add a zero depth/water play area to the pool e: \eng \projects \bondishu\cipmemo • Page 4 i • Listing of Major Capital Improvement Needs and Driving Forces Estimated Total Com ponent Need Driving Forces 1 City Hall underground storage tank removal & accessible $ 100,000 Tank removals mandated by EPA; must be removed by 1997; entrance: ADA entrance 2 Remodel wading pool $ 50,000 Existing pool does not meet Health Dept standards; must be remodelled by 1997 3 Garage fuel tank replacement (excludes $50,000 contribution $ 275,000 Tank removals mandated by EPA; must be removed & replaced by 1997 from public utilities) 4 Police improvements $ 4,000,000 Jail improvements mandated, variety of space, code, gender equity, health issues 5 Civic Center HVAC $ 350,000 Age, maintainability, energy inefficient 6 Replace playground equipment $ 500,000 High priority for Park and Recreation Commission 7 East Fire Station needs $ 1,600,000 Variety of code issues, gender equity issues, health issues 8 West Fire Station needs $ 1,300,000 Variety of code issues, gender equity issues, health issues 9 City Hall roof $ 125,000 Age, leaking, energy inefficient 10 Miscellaneous park improvements $ 500,000 Age, maintainability 11 Warming houses & picnic shelters $ 800,000 Age, maintainability 12 Community Center accessibility improvements: Elevator, $ 500,000 ADA restrooms 13 Replace phone /data $ 200,000 Age, maintainability 14 Upgrade radio system (excludes $100,000 contribution from $ 650,000 Possible future requirement, no more available frequencies, age of equipment public utilities) 15 Upgrade Council Chambers $ 250,000 Age of equipment, functionality, image 16 Addition to Community Center: meeting rooms & senior $ 500,000 Expansion of recreation programming center 17 Ice arena /youth activities center $ 3,000,000 Gender equity 18 New park facilities (Joslyn, Twin Lake Trail) $2 - $3 million Expansion of recreation programming 19 Family pool $1 - $3 million Expansion of recreation programming $ 17,700,000 I TOTAL $20,700,QOq f to r 26- Oct -95 FINANCING OPTIONS Two major financing options are available. J g P ilable. First is the use of our existing Capital Improvements Fund created to finance replacement projects, but its current resources are limited when compared to the need. The second major option is the proceeds from a general obligation bond issue or a general tax levy. The Capital Improvements Fund(CIF) was created by Resolution 68 -246 (attached). It has been the vehicle for carrying out four major (two in conjunction with bond issues) and a multitude of minor projects since then. In 1992, the City Council directed the Financial Commission to develop a policy to govern the use of the CIF. The Commission worked for a year and first reported the attached Capital Improvements Fund Expenditure Policy to the City Council on November 8, 1993. It was adopted by unanimous vote of the City Council on January 10, 1994. The Financial Commission had a number of objectives in developing the policy which should be expanded upon for the understanding of the City Council. The C P g ty IF fund is to be used for major, permanent, facilities. Minor projects could be handled through the General Fund budget and other needs could be financed from other funds such as MSA, utilities, or the EDA. The Commission wanted to emphasize planning through the five year capital improvement plan. Finally, the Commission wanted to maintain a minimum balance in the CIF. The purpose behind this was to provide a flow of future investment earnings to enable some capital projects to be undertaken in all future years without the need for frequent bond issues. Secondly, this • minimum balance would be an insurance policy against catastrophes such as natural disasters which would put a great strain on city resources. During the course of operating over the last 25 years, the CIF has accumulated a substantial unreserved fund balance, as shown on the attached History of Fund Balance report. This report shows the unreserved fund balance, but excludes funds appropriated, but not ' yet spent on projects and p J amounts loaned to other funds. In years the balance increased, capital outlays were less than revenues. In ear y s the balance decreased, capital outlays exceeded revenues. We estimate the CIF will end 1995 with an unreserved fund balance of about $4,858,500. The policy identifies the minimum balance which will be about $3,278,000 at the end of 1995. This allows $1,580,500 which could be spent on city needs immediately. With investment earnings, CIF moneys of up to $2,800,000 are available over the next five years. Selling a bond issue would be an appropriate way to supplement the resources of the Capital Improvements Fund. A general obligation bond supported by the property tax would require approval of the voters in a referendum election. Principal and interest payments on the bonds would be structured so that the bonds would mature in fifteen years. The City's Financial Management Policies specify that 50% of the principal of a bond issue be retired within ten years. The purpose being to pay off one bond issue before the need for the next one arises. • A recent change in state law affects the way the tax levy would be spread among taxpayers. The City's operating tax levy is spread on the basis of assessed value. A commercial property with a market value of $100,000 has a higher assessed value and pays higher property taxes than a residential property with a market value of $100,000. But when a bond referendum is approved by the voters, the resulting tax levy is spread on the basis of market value. A commercial property with a market value of $100,000 would pay the same property taxes as a residential property with a market value of $100,000 for a bond tax levy. The staff has developed some scenarios with bonds sales of $5,000,000 or $7,000,000 or $9,000,000. For each $1,000,000 of bonds sold with maturities of fifteen years, the typical $73,000 residence in Brooklyn Center would pay a property tax increase of $.70 per month. The $5,000,000 bond issue would generate a tax increase of $3.50 per month, the $7,000,000 bond issue a tax increase of $4.90 per month, and the $9,000,000 bond issue a tax increase of $6.30 per month. Without a bond issue, another more limited option exists. A bond issue would increase the city's total property tax levy by several hundred thousand dollars a year. In the absence of a bond issue, the City Council could decide to levy a property tax to go directly into the Capital Improvements Fund. The amount levied would be smaller than the one for a bond issue. It would ensure that the City could continue to do a greater level of projects each year after the current surplus in the CIF has been used, but wouldn't provide the amount that a bond issue might generate. In many cases, mandates or the physical deterioration of buildings might • require earlier funding. The combination of some level of bond sales along with the resources available in the Capital Improvements Fund could begin to meet a significant number of the identified needs of the city. Given the support revealed by the survey conducted by Decision Resources for a bond issue to build either police or fire facilities, it would seem to be advisable to proceed with some level of bond referendum. For example, the City Council may decided it is important to include meeting all the P olice station needs, full improvements at both fire stations, and completing playground replacements in a bond issue. Or, the bond issue might be expanded to include City Hall and Community Center improvements. Once decisions such as these have been made it is appropriate to brie in an hi g architect to begin preliminary planning and design and to provide better cost estimates, and to develop the strategic planning process of "packaging" the promotion of a bond issue. • I'L Member John Leary introduced the following resolution and moved its adoption: RESOLUTION NO. 68 -246 RESOLUTION AUTHORIZING THE ESTABLISHMENT OF A CAPITAL PROTECTS FUND WHEREAS, the City Council of the City of Brooklyn Center has determined that there are certain major, permanent facilities that are currently needed or will be needed in future years by the City of Brooklyn Center; and WHEREAS, the City Council deems it prudent to finance these facilities to the extent :possible from soar ces other than long -term borrowing; and WHEREAS, from time to time there are cerlain surpluses from various City funds and from other sources of revenue which become available to be used for purposes which may be designated by the City Council: NOW, THEREFORE, BE IT RESOLVED by the City Council of the City of Brooklyn Center that there is hereby created a fund to be known as the CAPITAL PROJECTS FUND; BE IT FURTHER RESOLVED that the purpose of the CAPITAL PROJECTS FUND is to provide funds and to account for the expenditure of such funds for major • capital outlays (which shall include, but not be limited to, construction or acquisition of major permanent facilities having a relatively long life); and /or to reduce debt incurred for capital outlays; BE IT FURTHER RESOLVED that the sources of revenue for said CAPITAL PROJECTS FUND shall consist of ad valorem taxation, transfers by the City Council of surpluses of other City funds, issuance of bonds, interest earnings of the fund, and from other sources of revenue whi h from time to time the City Council deems to be available for transfer nd. October 1 1 968 Date Mayor ATTEST: Clerk The motion for the adoption of the foregoing resolution was duly seconded by member Earl Rydberg , and upon vote being taken thereon, the following voted in favor thereof: Philip Cohen, John Leary, Earl Rydberg and Howard Heck; and the following voted against the same: none, whereupon said resolution was declared duly passed and adopted. fmcomm \cappolcy CITY OF BROOKLYN CENTER CAPITAL IMPROVEMENTS FUND EXPENDITURE POLICY POLICY OBJECTIVE The City of Brooklyn Center makes unrestricted capital expenditures through one of two funds. Generally, small capital expenditures are funded through the general fund and planned for as part of the annual budgeted process for the general fund. Large unrestricted capital expenditures are funded through the capital improvements fund based on resolution 68 -246, which was approved in 1968. Capital expenditures are also made through other funds such as the M.S.A. construction fund, the special assessment construction fund, the water fund, the sanitary sewer fund, and the storm drainage fund. These funds each have restrictions in place to guide their expenditures. The objective of this policy is to clarify funding for all unrestricted capital expenditures by specifically defining which capital expenditures are eligible for funding through the capital improvements fund. Unrestricted capital expenditures not meeting the criteria for the capital improvements fund must be made from the general fund operating budget. Specifically excluded from this policy are capital expenditures that are to be reimbursed by insurance proceeds. These may be accounted for through the capital improvements fund at the discretion of the Director of Finance. SOURCE OF FUNDS The sources are ad- valorem taxes, issuance of bonds, state and federal grants, transfers of unrestricted balances from other funds and investment earnings. USE OF FUNDS The following defines general expenditure criteria for the utilization of the capital improvements fund balance. A.) Major: Any capital expenditure that exceeds $25,000. Capital expenditures of less than $25,000 are to be made through the general fund operating budget. B.) Permanent: Any capital expenditure that has an estimated useful life of 10 years or longer. C.) Facility: Buildings, improvements to real estate, the acquisition of land for city purposes. This definition excludes the acquisition of land for development or resale and • excludes vehicles. Additionally, the capital improvements fund may be used to provide loans to other funds • maintained by the City. However, loans from the capital improvement fund may only be made to proprietary funds which have the ability to generate revenue and repay the loan within 10 years at prevailing interest rates. AUTHORITY TO SPEND Expenditures meeting the above criteria may be funded through the capital improvements fund based on the following authority limits: A.) Expenditures from $0 to $25,000: Not eligible for funding from the capital improvements fund. Funding is required through the general fund operating budget. B.) Expenditures from $25,001 to $200,000: The City Council may, through simple majority, approve these expenditures. C.) Expenditures over $200,000: Following a public hearing, City Council may, through a 4 /5th's majority, approve expenditures in this category. SPENDING LIMITATION /FUND BALANCE REOUIREMENT The objective as described above and previously defined in Resolution 68 -246 requires the capital improvements fund to be a permanent source of funding for planned major expenditures. As such, the following criteria is established to comply with that intent: A.) Planned Expenditures: If the proposed capital expenditure is in excess of $200,000 it must have been included in the five year capital improvements plan for at least two years. Additionally, the five year capital improvements plan must be approved by the City Council at a public hearing on an annual basis. B.) Fund Balance Requirements: A minimum fund balance shall be maintained with a beginning balance of $3,000,000 as of January 1, 1993 and increased by the Consumer Price Index each year thereafter. POLICY AMENDMENT Amendments to this policy require a 4 /5th's majority by City Council vote. • ROLE OF THE FINANCE COMMISSION: If a review of an expenditure is requested by the City ouncil from the Finance o tY Commission, the Finance Commission will respond on the basis of the following questions: A) Does the expenditure comply with the Capital Improvements Fund Expenditure Policy? B.) Is the expenditure appropriate considering the financial condition of the City? • • CITY OF BROOKLYN CENTER CAPITAL IMPROVEMENTS FUND HISTORY OF FUND BALANCE Unreserved Year Fund Major Factors in Change From Ending Balance Prior Year's Fund Balance 12131/72 $0 12/31/73 $101,760 Transfer Spec Assess Debt Service 12/31/74 $109,719 Interest Earned 12/31/75 $190,733 Interest Earned 12/31/76 $212,546 Interest Earned, Revenue Sharing 12/31/77 $327,255 Projects underbudget 12/31/78 $429,559 Interest Earned, Insurance proceeds 12/31/79 $353,836 Transfer to MSA Fund 12/31/80 $529,166 Interest Earned, Transfers In 12/31/81 $554,548 Interest Earned- 12/31/82 $454,577 Capital Outlays • 12/31/83 $941,598 Interest Earned, Transfers In 12131/84 $2,948,660 Interest Earned and Transfers from Spec Assess Debt Service funds 12/31/85 $2,624,702 Capital Outlays 12/31/86 $1,859,591 Capital Outlays 12/31/87 $3,488,309 Interest Earned, Sale of land, and Transfers from Special Assessment Debt Service funds 12/31/88 $3,492,874 Interest Earned 12/31/89 $3,725,817 Interest Earned 12/31/90 $4,100,273 Interest Earned 12131/91 $5,375,337 Interest Earned and Transfers from Spec Assess Debt Service funds 12/31/92 $5,405,997 Interest Earned 12/31/93 $5,607,744 Interest Earned 12/31/94 $5,368,743 Capital Outlays Est 95 $4,858,568 Capital Outlays f:\bdgt.ch \cphistfb 10/26195