HomeMy WebLinkAboutSpecial 2014-01-13 COMPLETE AGENDA PACKETINTRODUCTION
TUKWILA FACILITY NEEDS ASSESSMENT AND FEASIBILITY STUDY
SPACE NEEDS ANALYSIS
INTERNAL DISCUSSION DRAFT
January 6th, 2014
The City of Tukwila is conducting a Facility Needs Assessment and Feasibility Study to plan for the long-
term sustainability of the City's facilities, optimize organizational efficiencies, and improve public safety.
Phase 1 of the project includes establishing an evidence -based assessment of the City's current facility
needs and projected needs thorough 2035, the year for which reliable population and employment
estimates are available.
This analysis presents a planning -level assessment of the City of Tukwila's current facility needs.
Predesign estimates of facility needs:
• Estimate the total gross sq. ft. needed to support current City functions.
• Will support future evaluations of current facility and site suitability.
• Are based on an optimized interior plan layout. Constraints of current buildings layouts or other
factors may increase the planning target for some departments.
• Often assumes a standalone function, future project phases will establish colocation opportunities
that may reduce the necessary space to accommodate circulation, building mechanics, or other non -
rentable space.
A list of current City facilities is presented in Appendix A.
APPROACH & PRELIMINARY SPACE NEEDS ESTIMATES
Different city functions have different facility needs. This analysis estimates current facilities needs and
projected facility needs according to workgroups delineated in collaboration with City staff. The analysis
uses two approaches to estimate space needs. The first is an staffing -based approach that uses
evidence -based space metrics established by agencies. If established metrics are not available, we
examined a sample of similar facilities to determine a suitable metric. The second is a program -based
approach using identified program elements or similar facilities in other jurisdictions. This document
reviews the methods employed establishing current and future space needs.
Staffing -based Estimates
Space needs of nine workgroups were estimated based on standard space allocations and current
staffing counts. Exhibit 1 illustrates the approach with descriptions of calculation inputs following the
diagram.
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TUKWILA FACILITY NEEDS ASSESSMENT AND FEASIBILITY STUDY
SPACE NEEDS SUMMARY I INTERNAL DISCUSSION DRAFT 1 -6 -2014
4
Exhibit 1
Staffing- driven Estimates Approach
employees s.f. metric
I'f
1 t
grossing factor
Notes on inputs and assumptions:
• Employees. Employee counts are based on current (2013/4) budget. Executive staff counts of
current staff were corroborated through payroll records.
• Sq. ft. metric. A space metric is a net unit of square footage of space assigned to a single individual.
It is used in conjunction with a grossing factor to develop the gross square footage of a building.
o General office metric: The Department of Enterprise Services for the State of Washington
developed established space planning standards in 2009 including a 215 sq. ft. per person metric
for predesign scopes of services for State funded projects. It is a measure designed to provide
space at the lowest possible cost in sufficient quantities and qualities for programs to function.
The 215 sq. ft. metric is a planning average and assumes a balance of approximately 90% cubicles
and 10% enclosed office spaces. Exhibit 2 presents a prototypical 30,000 sq. ft. (gross) office
layout with permanent occupied workspace seating for approximately 85 people. This plan shows
approximately 352 sq. ft. (gross) per person, slightly less efficient than our metric which yields 322
sq. ft. (gross) per person.
❑
▪ c
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O
Exhibit 2
Prototypical Office Space Layout
o Police metric: Police services are highly variable by agency and do not lend themselves to an
industry standard metric. To develop a net space metric, the architectural team interviewed
2
TUKWILA FACILITY NEEDS ASSESSMENT AND FEASIBILITY STUDY
SPACE NEEDS SUMMARY I INTERNAL DISCUSSION DRAFT 1 -6 -2014
police department personnel and reviewed current services based on a space checklist developed
by the International Association of Chiefs of Police (IACP). The interviews identified specific
functions to be accounted for in space needs planning.
To identify a suitable metric, the analysis draws from the findings by Revenue & Cost Specialists,
LLC, Fullerton California in a review of space utilization by 23 police stations with space resources
ranging from 2,000 to 150,000 sq. ft. The study found that the average gross square footage was
347 sq. ft. per person. In addition to reviewing current space use, the study qualitatively assessed
the adequacy of space. Policing agencies with less than 250 sq. ft. per person reported routine
and specific dysfunction from space constraints. As space use exceeded 250 sq.ft. per person and
above, agencies more frequently reported that space was adequate or manageable, though many
could use more space. Based on these two inputs, the analysis recommends 240 sq. ft. (net) per
staff count (or 360 sq. ft. gross when using a 1.5 multiplier) to arrive at an approximate facility size
to house the identified program spaces. Exceeding the 347 sq. ft. recommended by the study is a
professional judgment based on the number of functions identified by city staff.
• Grossing factor. The total area of a building (area enclosed by exterior walls) is a combination of
assignable (net) space and non - assignable space (building structure, mechanical /electrical service
space, and vertical circulation for example). To arrive at a gross area the net area is multiplied by a
"grossing factor ", yielding the total building area. This factor is generally determined by the building
function being served. Generally, a building of low complexity (warehouse space) will have a low
multiplier (1.16 for example), and higher complexity (laboratory space), will have a higher multiplier
(1.8 to 2.0). The use of 1.5 is a professional determination and judged to be adequately conservative
for the nature of spaces under examination.
Exhibit 3 presents the preliminary Employee- Driven Estimates for space needs based on the
assumptions discussed above.
Exhibit 3
Preliminary Staffing -based Estimates
Department
DCD
Finance
Fire (administrative)
Human Resources
Information Technology
Mayors Office
Parks & Recreation Administration
Public Works (admin.)
Police
Total
Counts
2013
Employees
Gross S.F. Need
28
12
14
4
8
17
27
22
92
Grossing Current
Metric (s.f.) Factor Need (s.f.)
215 1.5 9,030
215 1.5 3,870
215 1.5 4,515
215 1.5 1,290
215 1.5 2,580
215 1.5 5,483
215 1.5 8,708
215 1.5 7,095
240 1.5 33,120
224 75,690
Program -based Estimates
Prescriptive estimates are based on comparable facilities use and program design. This approach was
employed for the following uses:
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TUKWILA FACILITY NEEDS ASSESSMENT AND FEASIBILITY STUDY
SPACE NEEDS SUMMARY I INTERNAL DISCUSSION DRAFT 1 -6 -2014
Council Chambers
The space needs estimate for Council Chambers involved an analysis of the facilities at Burien, SeaTac,
Federal Way and Renton as comparables. The Burien Council Chambers, depicted below, has an
estimated floor area (of the chambers) of 2,100 sq. ft. and seating for 128 in the configuration
illustrated. A standalone facility of the same configuration would require the 1.5 grossing factor for a
total of 3,150 sq. ft., or 25 sq. ft. per dedicated seat.
Exhibit 4
Burien City Hall Council Chambers
1600
Tukwila's current council chamber has dedicated seating for 72 (6 rows of 12 seats). City staff report
that current seating is insufficient for special presentations or other meetings holding significant public
interest and that seating for 100 would better meet the City's current needs. For planning purposes, the
study uses a predesign target of seating for 128 and assumes a "standalone" space, resulting in a
planning target of 3,150 gross sq. ft.
In addition to chamber space of 3,150 the council chamber estimate includes office space for 4 using the
215 sq. ft. average metric and 1.5 grossing factor amounting to a pre- design estimate of 4,440 sq. ft. for
council chambers. This allowance is expected to diminish in the next planning phase as department
spaces are collocated.
Emergency Operations Center
The City of Tukwila does not currently have a dedicated Emergency Operations Center (EOC). To
calculate a predesign space allowance for an EOC, the analysis uses a prototypical space diagram
developed by Homeland Security. City ECO management personnel reviewed the prototypical space
diagram (depicted below) to identify necessary components for the City of Tukwila. The predesign space
needs estimate is based on the prototypical layout illustrated in Exhibit 5 and the maximum personnel
count expected for an emergency. The total net square footage is 5,202 sq. ft. (the sum of space
estimates indicated in red). The greater specificity provided by the prototypical plan allows less
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TUKWILA FACILITY NEEDS ASSESSMENT AND FEASIBILITY STUDY
SPACE NEEDS SUMMARY I INTERNAL DISCUSSION DRAFT 1 -6 -2014
allowance for circulation and structural space needs. The analysis is based on a multiplier of 1.16 (as
opposed to 1.5 for general office space) resulting in 6,032 gross sq. ft. As with Council space, it is
expected that collocation will lead to a smaller square footage allowance later in the process.
Exhibit 5
Prototypical Emergency Operations Suite, Indicating Use and Space Needs
•
T-Fiai-F41g- Communications Policy Board! : -Gemmel-eider
H/ 300 sq. ft. .4 Conference Room ► ■11.
400 sq. ft. Two
I .
p I I Offices
400 sq. fi.
Map Room -
100 sq. fP.
Operations
Room
1600 sq. ft.
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Data 7
Tefecomn , 0 Lobby
Equipment 100 sq. ff
Room
150 sq. ft.
Break -out
150 sq, ft.
Break -out
150 sq. ft.
Mechanical
Roam
200 sq. ft,
Parks & Recreation Maintenance
Iran uu
(cart -uu
Storage
400 sq. ft.
• Dining Kitchen
160 160 sq. ft, 150 sq, ft,
Sleeping Quarters
Exercise
Showers and Toilets
L 950 sq. ft.
The current space used by Parks and Recreation maintenance functions is considered adequate for the
City's current needs. The predesign space needs analysis uses the current square footage of 7,300 sq. ft.
as an estimate.
Public Works (shops)
An expert architectural review of the Public Works space at both the Minkler Shops and at George Long
concluded that the space is deficient solely by inadequacies in the plan (the layout of the buildings,
rather than building size). In comparison to modern shop facilities, the Minkler plan is highly inefficient.
The layout consists of a series of short span, long serpentine spaces that have very little flexibility and
inhibit any real reconfiguration or logical planned expansion for growth. In particular, the storage bins
are designed in a long "shotgun" style without opportunities for conversion unless very awkward
interior circulation patterns are used. An ordered rectangle space would make gains through large clear
span spaces allowing lots of opportunity for both reconfiguration and expansion. To estimate current
space needs, the analysis applies a multiplier on current rentable (net) space of 1.5 at Minkler and 1.1 to
George Long. The existing square footage grossed up by the associated multiplier will account for
properly designed circulation space, centrally located mechanical/ electrical space, and vertical
transportation space (stairs) to enable efficient use of second story development. Site planning both
facilities together in one building envelop may make addition gains in efficiency, as well as and
considering two story options for office spaces, lockers, kitchens, or diagnostics spaces as done by more
contemporary designs.
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TUKWILA FACILITY NEEDS ASSESSMENT AND FEASIBILITY STUDY
SPACE NEEDS SUMMARY I INTERNAL DISCUSSION DRAFT 1 -6 -2014
Fire Operations
The fire operations space needs estimates are based on an average station size of 9,828 sq. ft. This
figure is based on the combined average of three VRFA station sizes with staffing that is equivalent to
Tukwila's current stations, as well as eight recent replacement stations in the City of Seattle that match
the designated staff baseline of Tukwila's current stations. None of the comparable stations include bays
for on -site vehicle maintenance or specialized training facilities such as a training tower.
Courts
The program -based method used for the Courts calculation is taken from the "U.S. Courts Design Guide,
2007 Edition." It delineates the component parts and relative size for different models of courtroom
design, as a guide to the planning process.
Exhibit 6 presents the preliminary prescriptive estimates for Tukwila facilities.
Exhibit 6
Preliminary Program -based Estimates
Council
EOC
Parks & Recreation Maintenance
Public Works (shops)
Fire (operations)
Courts
Total
Gross S.F. Need
2013
Employees
8
10
43
54
11
Current Need
(s.f.)
4,440
6,032
7,300
62,919
43,826
5,029
126 129,546
PRELIMINARY FUTURE SPACE NEEDS PROJECTIONS
To determine a planning -level estimate of future space needs, the current needs methodology was
updated based on preliminary planning estimates of future staffing levels.
The main driver in estimating future staffing levels are population and employment growth. We tested
two sources of growth projections. The first is BERK's analysis of historical growth trends conducted in
2012 for a baseline fiscal assessment of the City's operating budget. The historical data came from the
2007 King County Buildable Lands report on residential and commercial development from 1996 to
2005. These data are from a "normal" market period, and do not include the downturn experienced in
the recent recession. Residential growth is forecasted at slightly higher rate than the 10 -year annual
averages based on the professional opinion of City staff about likely growth and known developments.
Commercial growth is forecasted similar to the 10 -year average, though assumes a slightly higher ratio
of retail /office space compared to industrial space.
The second forecast is PSRC's Land Use Targets, representing the allocation of the City's adopted growth
targets. This forecast represents the number of people and jobs the City is required to plan for and is
more closely tied to the development capacity in the City's comprehensive plan. Exhibit 7 presents
comparisons of projected population and employment growth for Tukwila.
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TUKWILA FACILITY NEEDS ASSESSMENT AND FEASIBILITY STUDY
SPACE NEEDS SUMMARY I INTERNAL DISCUSSION DRAFT 1 -6 -2014
Exhibit 7
Comparison of Historical -based and PSRC Forecasts, 2013 - 2040
POPULATION
35,000
30,000
25,000
19,091 19,160
20,000 18,000
15,000
10,000
5,000
26,872
21,512
29,226
22,492
31,579
23,472
24,452
1 -PSRC
-*-Historical
-0-Actual
2007 2010 2013 2015
EMPLOYMENT
80,000
70,000
60,000
50,000 47,006
40,000
30,000
20,000
10,000
2025 2030 2035 2040
62,543
65,217
68,607
49,979
- I-PSRC
tHistorical
tActual
2007 2010 2013 2015
2025 2030 2035 2040
2013 2035 2013 - 2015
Estimate Projection Change %Change
Population 19,160
Historicals based projections (2012) 23,472 4,312 22.51%
PSRC LUT Forecasts 31,579 12,419 64.82%
Difference 8,107 42.31%
Jobs
Historicals based projections (2012)
PSRC LUT Forecasts
39,530
48,044 8,514 21.54%
68,607 29,077 73.56%
Difference 20,563 52.02%
Source: BERK analysis of development, 2012; PSRC Land Use Target Forecasts, July 2013
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TUKWILA FACILITY NEEDS ASSESSMENT AND FEASIBILITY STUDY
SPACE NEEDS SUMMARY I INTERNAL DISCUSSION DRAFT 1 -6 -2014
PSRC forecasts a more significant rate of growth than Tukwila has experienced in the recent past
including 8,107 more residents and 20,563 more jobs in Tukwila by 2035. The scale of difference
between the two projections will be a consideration in the development - planning phase of the project.
For projecting future space needs, this analysis uses the historical -based projections and a planning
horizon of 2040 to align with regional planning efforts. The projections assume an increase of 5,292
residents and 10,449 jobs between 2013 and 2040, as presented in Exhibit 8.
Exhibit 8
Growth Assumptions for City of Tukwila, 2013 — 2040
Compound
2013 2040 Change Total Growth Annual Growth
Residents 19,160 24,452 5,292 27.62% 0.91%
Employment 39,530 49,979 10,449 26.43% 1.07%
Residents + jobs 58,690 74,431 15,741 26.82% 1.09%
The gross level demand drivers (population and jobs growth) were adjusted to reflect actual service
drivers by department and reasonable estimates of the economies of scale in staffing. For each
department, a growth driver and an elasticity factor were selected. The growth driver determines the
basis for future staffing levels, while the elasticity factor estimates the degree to which future growth in
the driver relates to growth in staffing. For example, in police services the underlying driver is the
growth in the sum of residents and jobs, acting as a good proxy for overall demand in service calls.
However, there are a number of functions within the department which are not significantly affected by
changes in call volume, such as administrative functions and senior chain of command positions. As a
result, an elasticity factor of 0.8 is used to reduce the impact of the underlying driver on overall staffing.
In effect, this factor suggests that approximately 80% of the staffing will be affected by the underlying
driver, while 20% would remain fixed.
At this level of analysis, it should be emphasized that these are very high level planning estimates and
that the primary goal is to develop a sound basis for facility planning which reasonably accounts for
some of the key factors affecting staffing demand by department. This is not intended to be an actual
staffing forecast, since staffing levels will ultimately be determined by factors beyond the scope of this
analysis such as changes in technology, policy decisions regarding level -of- service and future budget
considerations. Given this, the departmental analysis uses the following growth driver assumptions:
• Residents + Jobs. Future service demands in the majority of the direct service departments are
assumed to be driven by growth in residents and jobs. While the underlying driver is the same for
each, the elasticity factors vary from 0.8 for police and fire to 0.5 for the other departments
reflecting a greater ability to achieve economies of scale in these functions.
• Residents. Parks and recreation services were assumed to be driven primarily by resident
population growth with an elasticity factor of 0.5 to reflect that a key constraint to growth will be
the availability of facilities from which to offer recreation services.
• Constant. At the scale of growth envisioned in this analysis, it is assumed that both the Council and
Mayor's Office staffing will remain constant over the planning horizon.
• Overall staffing. Human resources and Information Technology are driven by changes in overall city
staffing, reflecting that these are primarily internal service functions. Human resources was assigned
8
TUKWILA FACILITY NEEDS ASSESSMENT AND FEASIBILITY STUDY
SPACE NEEDS SUMMARY I INTERNAL DISCUSSION DRAFT 1 -6 -2014
a 0.5 elasticity factor, while IT was given a 0.8 elasticity factor to reflect a greater variable cost for IT
services.
• Departmental Staffing Growth. Some of the administrative functions of specific departments are
called out separately (Fire & Public Works) and so these positions are driven by the operational
staffing levels within these departments. Both assume an elasticity factor of 0.5.
For each department the Growth Factor represents the percent change in the growth driver. For
example, the growth in residents is expected to be 22.51 %, thus the growth factor is listed as .23.
Exhibit 9 presents the preliminary 2035 staffing estimate analysis, showing a growth factor based on the
assumed growth driver and elasticity factor by department.
Exhibit 9
Future Space Needs Estimates
Current Growth Elasticity Projected 2040
Department Staffing Factor Factor Staffing Growth Driver
Council 8.0 0.00 1.00 8.0 Constant
Courts 11.0 0.27 0.50 12.5 Residents + Jobs
DCD 28.0 0.27 0.50 32.0 Residents + Jobs
Finance 12.0 0.27 0.50 13.5 Residents + Jobs
Fire (operations) 54.0 0.27 0.80 65.5 Residents + Jobs
Fire (administrative) 14.0 0.21 0.50 15.5 Fire Operations
Human Resources 4.0 0.15 0.50 4.5 Overall staffing
Information Technology 8.0 0.15 0.80 9.0 Overall staffing
Mayors Office 17.0 0.00 1.00 17.0 Constant
Parks & Recreation Administration 27.0 0.28 0.50 30.5 Residents
Parks & Recreation Maintenance 10.3 0.00 0.50 10.5 Parks Facilities
Police 92.0 0.27 0.80 111.5 Residents + Jobs
Public Works (admin.) 22.0 0.14 0.50 23.5 Pub Works Ops
Public Works (shops) 43.0 0.27 0.50 49.0 Residents + Jobs
Total
350.25 402.50
Source: BERK, 2013
Exhibit 10 presents estimated future space needs determined by applying the current space needs
methods to the future staffing levels. The staffing -based estimates are a straightforward application of
the space per employee method, while the program -based analysis determines space needs by applying
the employee ratios established in the current needs analysis to the future staffing levels for these
functions.
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TUKWILA FACILITY NEEDS ASSESSMENT AND FEASIBILITY STUDY
SPACE NEEDS SUMMARY I INTERNAL DISCUSSION DRAFT 1 -6 -2014
Exhibit 10
Preliminary 2040 Space Needs Estimates
Staffing -based Estimates
Counts Gross S.F. Need
2040 Metric (sq. Grossing Future Need
Department Employees ft.) Factor (sq. ft.)
DCD 32.0 215 1.5 10,320
Finance 13.5 215 1.5 4,354
Fire (administrative) 15.5 215 1.5 4,999
Human Resources 4.5 215 1.5 1,451
Information Technology 9.0 215 1.5 2,903
Mayors Office 17.0 215 1.5 5,483
Parks & Recreation Administration 30.5 215 1.5 9,836
Public Works (admin.) 23.5 215 1.5 7,579
Police 111.5 240 1.5 40,140
Subtotal - Employee Driven 257.0 87,064
Program -based Estimates
Counts Gross S.F. Need
2040 Current Future Need
Employees Ratio (sq. ft.)
Council 8.0 555.0 4,440
EOC 6,032
Parks & Recreation Maintenance 10.5 712.2 7,478
Public Works (shops) 49.0 1,463.2 71,698
Fire (operations) 65.5 811.6 53,159
Courts 12.5 457.2 5,715
Subtotal - Prescriptive 145.5 148,522
Totals 402.5 235,586
Source: BERK, 2013
10
APPENDIX A
Current City Facilities
Exhibit 11
Current Employee Space, 2013
Building
6300 Building
City Hall
George Long
Minkler
Fire Station 51
Fire Station 52
Fire Station 53
Fire Station 54
Records /Evidence (Sabey Lease)
Records /Evidence (Old FS #53)
Southcenter PD
Neighborhood Resource Center
Tukwila Heritage and Cultural Center
Old Water District 125 Maintenance
Tukwila Community Center
Parks /Golf Maintenance Facility
Foster Golf Links Clubhouse
Total Area Occuppied
Included in Total Employee
2008 Study s.f. Floor Area
yes 50,526 50,526
yes 24,991 24,991
yes 25,640 25,640
yes 21,000 21,000
yes 17,700 17,700
yes 3,350 3,350
yes 14,000 14,000
yes 5,300 5,300
no 6,651 6,651
no 6,100 6,100
no 900 900
no 900 900
no 2,500 2,500
no 550 550
no 48,000 784
no 7,300 7,300
no 14,400 600
249,808 188,792
2008 Recommendations
seismic retrofit
seismic retrofit
reolace
seismic retrofit
reolace
seismic retrofit
condition ok
seismic retrofit
not part of 2008 study
not part of 2008 study
not part of 2008 study
not part of 2008 study
not part of 2008 study
not part of 2008 study
* not part of 2008 study
not part of 2008 study
* not part of 2008 study
Gross Sq. Ft.
Leased/
Owned
owned
owned
owned
owned
owned
owned
owned
owned
leased
owned
leased
leased
owned
owned
owned
owned
owned
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