Title
a. Receive update on the 1281 Broadway, Seaside Community Benefits Office Replacement Project; and
b. Provide direction to staff for the scoping of the Project as staff begins the Fiscal Year (FY) 2025-26 Capital Improvement Program.
Report
RECOMMENDATION:
It is recommended that the Board of Supervisors:
a. Receive update on the 1281 Broadway, Seaside Community Benefits Office Replacement Project; and
b. Provide direction to staff for the scoping of the Project as staff begins the Fiscal Year (FY) 2025-26 Capital Improvement Program.
SUMMARY:
The 1281 Broadway, Seaside Community Benefits Office Replacement Project (Project) was identified as a priority and funded project in 2022 for funding in the Fiscal Year 2023, 2024 and 2025 Capital Improvement Plan (CIP) to continue with the design of a proposed four-story replacement facility and associated parking garage to include space for the Department of Social Services (DSS), Monterey County Free Libraries (MCFL), District Attorney (DA) Family Justice Center, space for community meetings and relocation if needed of existing Casa de Noche Buena Shelter to an offsite location. Since the Project’s initial funding allocation in the FY 2023 CIP for the planning and programming phase, a total of $5.3 million has been allocated to the project to complete design, environmental, permitting and cost estimating. From July 2024 through November 2024, staff continued to work with architectural and engineering consultants to complete construction design documents which were 75% complete. Approximately $1.8 million is remaining to complete 100% design, environmental and permitting.
On November 12, 2024, the County Administrative Office’s (CAO) Budget and Analysis Division presented funding options for priority County CIP projects including the 1281 Broadway Community Benefits Replacement Project, which was estimated to cost $112 million. During this meeting, the project was not prioritized for funding and staff were directed to review alternate lower cost design options focused on either renovating the existing facility or construction of a smaller scale facility.
This report provides background on project planning and design efforts to date and discusses 6 alternate development options and associated costs for the Board’s consideration and direction.
All 6 development options allow for the existing Casa de Noche Buena shelter operations to remain in place. After review of options and associated costs, DSS staff recommend the third (3rd) option with an estimated project cost of $42.9 million that provides for a new 28,000 sq ft facility with a satellite library space and shared community space. This option meets DSS’s future 10 year needs, provides for an optimal use of space and Casa de Noche Buena shelter operations remain in place while meeting all associated parking needs for this scenario.
Public Works, Facilities and Parks (PWFP) staff seek Board direction to move forward with redesign of the Project in FY 2025-26 based on option 3 using remaining estimated $1.8 million design funding that has been previously allocated for the project. Staff anticipates the remaining re-design, environmental due diligence, permitting and final cost estimate to be completed by June 30, 2026, when staff will return to the Board to review funding option for the construction phase.
DISCUSSION:
Existing Site Description
The existing 1.74-acre County owned site at 1281 Broadway includes two buildings: a 13,000 sq ft, two story wood frame and tile roof facility built in 1975 that is currently occupied by DSS and 5,400 sq ft modular facility that is currently occupied by Casa de Noche Buena family shelter. Casa de Noche Buena operators completed a $2,000,000 major renovation in 2019 and a 10 -year deed restriction was recorded with the County of Monterey in 2020 for continued use of the site for the shelter operations.
The DSS Community Benefits facility serves residents throughout Monterey County and provides access to various services including CalWORKs, CalFresh, Medi-Cal, General Assistance and Cal Learn as well as access to an onsite Child Support Officer three days a week. A staff of 60 to 70 employees serve an average of 9,839 clients per month and 121,088 clients a year at this location.
Casa de Noche Buena is operated by Community Human Services (CHS), a public nonprofit and Joint Powers Authority serving Monterey County, and Gathering for Women, a nonprofit charitable organization, which are both tax exempt pursuant to Internal Revenue Code section (501(c)(3)). The facility serves up to 35 residents in a home like setting and has a long waiting list for occupancy.
FY2023 Facility Assessments and Planning Phase
In June 2022, the Board of Supervisors (Board) approved the FY 2022-23 Capital Improvement Program, which allocated $250,000 for preliminary planning and programming for the 1281 Broadway, Seaside Community Benefits Office Replacement Project.
As part of the preliminary planning phase, PWFP staff engaged a project architect and engineering team from Nichols, Melburg & Rosetto (NMR) to conduct a comprehensive facility assessment and begin space programming with County staff. NMR reviewed the overall site plan, floor plan, building envelope, accessibility, structure, mechanical, electrical and plumbing systems. NMR determined that the facility had deficits in all aspects of its functional planning and building systems and did not have enough space for DSS to operate efficiently.
From July 2022 through June 2023, NMR conducted preliminary programming, scoping and estimating for the project which culminated in the preliminary design for a 3-story facility and associated parking to serve the DSS and Monterey County Free Libraries (MCFL) branch as well as flexible community meeting space. The preliminary cost estimate was $68 million.
FY2024 and FY2025 Design and Permitting Phase
In June of 2023, the Board approved the FY 2023-24 Capital Improvement Plan which allocated an additional $2.95 million for continued design, engineering, environmental and permitting tasks for the 1281 Broadway, Seaside Community benefits Office Replacement Project. PWFP engaged architectural consultant NMR to continue design services through permitting.
From July 2023 to June 2024, PWFP staff worked in collaboration with staff at the DSS and MCFL to complete programming and design activities. During this process, a request emerged from the District Attorney (DA) to incorporate space for a family justice center within the facility. With the added space program, a need also emerged to accommodate possible relocation of the shelter due to onsite parking requirements.
On October 12, 2023, a town hall meeting was held at the City of Seaside Community Center. During this meeting, proposed development concepts were presented by PWFP staff, NMR, and representatives from various County Departments. Casa de Noche Buena participated in the meeting.
The new building design concepts included community spaces, meeting rooms and outdoor public spaces for community programing. The Community Service Center was to serve as a one-stop location for customers to secure public benefits, employment services, adult services, and family and children’s services. The Seaside Branch Library was to include spaces for children’s programming and family activities. The Family Justice Center was to provide a safe and convenient location for victim advocate services. Flexible workspaces were programmed for WIC nutrition classes, DSS eligibility assessments, Health Department services and Behavioral Health services. Multipurpose community spaces and meeting rooms were to be available for community-based organizations, resource classes, and hosting public forums. The facility was designed to serve as a center for a broad spectrum of community engagement and wellbeing.
During the January 18, 2024, Capital Improvement Committee meeting, PWFP staff presented a status report on the design of a 64,500 sq ft four-story replacement building and an adjacent 250-space parking structure to accommodate the DSS, DA County of Monterey Family Justice Center and the MCFL Seaside Branch. This proposed design indicated that to meet parking requirements for the added department and community programs, the adjacent women’s shelter would need to be relocated. Therefore, the project also included programming and space planning with the Casa de Noche Buena Shelter staff for an eventual offsite shelter location. The total estimated cost for that design including the shelter relocation was $112 million.
In June 2024, the Board approved the Capital Improvement Program for FY 2024-25, which increased total funding allocation to $5.3 million to complete design, permitting and cost estimating tasks for the 1281 Broadway, Seaside Community Benefits Office Replacement Project.
On October 8, 2024, PWFP staff provided a presentation to the Board regarding prioritization for funding of the top capital projects including the 1281 Broadway, Seaside Community Benefits Office Replacement Project. The design was 75% complete and the estimated cost was $112 million.
On November 12, 2024, the County Administrative Office (CAO) presented a report regarding financing options for priority capital improvement projects identified by the Board. The 1281 Broadway, Seaside Community Benefits Office Replacement Project was not selected for priority funding during this meeting. Staff were directed to develop alternative facility development options that were less costly and did not displace the adjacent women’s shelter.
Alternative Facility Development Options
Staff has since worked with design consultants to develop six alternate facility development options. All six options allow for the existing Casa de Noche Buena shelter operations to remain in place.
Option One provides for the renovation of the existing two story 13,000 sq ft facility at total estimated cost of $16.4 million. This option would extend the useful life of the facility and address required code upgrade and repairs needs. However, this option does not meet the current or future space needs of the DSS and would not include space for any outside services such as the library.
Option Two provides for developing a 30,000 sq ft, two story facility by renovating and adding-on to the existing facility at a total estimated cost of $42 million. This option includes a 1,000 sq ft satellite library space and 2,000 sq ft shared community space but no additional space for other services such as the District Attorney Family Justice Center. This option would meet the DSS current and future 10-year needs. However, this option has a less efficient use of space and does not optimize the public serving lobby space due to physical constraints of the existing facility structure.
Option Three provides for the demolition of the existing facility and the development of a new two-story 28,000 sq ft facility that provides space for a satellite library space but no additional space for non-DSS services at a total estimated cost of $42.9 million. This option provides for more efficient use of space to meet DSS programming needs with a minimal extra cost compared to the second option of adding on to existing facility.
Option Four provides for the demolition of the existing facility and the development of a brand-new 46,500 sq ft three-story facility with underground parking that provides space for a full library space, a shared community space but no additional space for other services at a total estimated cost of $73.7 million. This option provides for full library space and would require some special variances from the City of Seaside to use 64 offsite parking spaces to fully meet parking requirements.
Option Five provides for the long-term lease of a facility that DSS has identified for occupancy during the construction of one of the four options above. This is a 13,900 sq ft facility located at 915 Hilby Avenue, Seaside, California. The property owner has indicated willingness to lease the facility to the County for a short term so DSS can continue operations while construction is taking place for the permanent facility.
Alternatively, the Property owner is also willing to enter into a long-term lease with DSS. The facility would not fully meet long-term space needs, but would be an improvement from the current facility at 1281 Broadway. If DSS permanently moves from the facility at 1281 Broadway, the County would need to identify future disposition of the 1281 Broadway facility.
Option Six provides for the negotiation of a long-term lease at 915 Hilby Avenue in Seaside or another suitable non-County owned location in Seaside that includes tenant improvements and renovation adequate to meet the minimum 10-year space requirements for DSS. The County (on behalf of DSS) would execute a long-term lease with the property owner prior to renovation so that the owner has the option to use the County’s lease and the property as collateral to seek development funding.
After review of options and associated costs, DSS staff recommends the third option that provides for a new facility with a satellite library space. This option meets DSS’s future 10-year needs, provides for an optimal use of space and preserves the Shelter operations in place while meeting all parking needs. PWFP Staff seeks Board authorization to move forward with redesign of the Project based on Option 3 using remaining $1.8 million of funding that has been previously allocated for the project. Staff anticipates the design, environmental, permitting and final cost estimate to be completed by June 30, 2026, and return to the Board to review funding option for the construction phase.
OTHER AGENCY INVOLVEMENT:
Key personnel from PWFP, DSS, MCFL, DA and Casa de Noche Buena have contributed significant staff hours to the development of space programming and site development to date. PWFP conferred with DSS, MCFL and CAO regarding the most recent facility development options.
FINANCING:
This Committee’s direction will guide staff in the development of the FY 2025-2026 CIP Five-Year Plan. Staff would use estimated remaining $1.8 million of funding that has been previously allocated for the project to resume design activities for the project. There is no financial impact at this time.
BOARD OF SUPERVISORS STRATEGIC INITIATIVES:
If approved, this action supports the Board of Supervisors’ Strategic Initiatives for Administration and Infrastructure, by designing an integrative community-based approach to delivery of important services, and improved satisfaction and access to county services.
___ Economic Development
X Administration
___ Health & Human Services
X Infrastructure
___ Public Safety
Prepared by: Florence Kabwasa-Green, Chief of Facilities, (831) 755-4805
Reviewed by: Lindsay Lerable, Assistant Director of Public Works, Facilities and Parks
Approved by: Randell Ishii, MS, PE, TE, PTOE, Director of Public Works, Facilities and Parks