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HomeMy WebLinkAbout10 TUSTIN LIBRARY 10-05-98A.GENDA NO. 10 10-5-98 Inter Co m DATE: OCTOBER 5, 1998 TO' FROM: SUBJECT: WILLIAM A. HUSTON, CITY MANAGER CHRISTINE A. SHINGLETON, ASSISTANT CITY MANAGER TUSTIN LIBRARY NEEDS ASSESSMENT AND FACILITY PLAN FaCility Plan a~d folloW-Up . : I RECOMMENDATION It is recommended that the City Council take the following actions as recommended by the Ad-hoc Library Planning Committee: 1. Approve the Tustin Library Needs Assessment and Facility Plan; 2. Direct staff to initiate discussions with the County regarding the potential for creating a ballot measure to fund construction of an expanded Tustin Library.facility; 3. Appropriate $20,000 from Fiscal Year 1998-99 general fund reserves and authorize the Assistant City Manager to execute a consultant services agreement to undertake community polling for a Tustin Library expansion project. Any consultant services agreement shall be approved as to form by the City Attorney. FISCAL IMPACT Funding of the Facility Plan was previously appropriated. A funding commitment of $20,000 is requested at this time for consultant services in examining the potential for a ballot issue to fund a Tustin Library expansion project. BACKGROUND The City Council in January, 1998, authorized the services of David M. Griffith and Associates to prepare a Tustin Library Needs Assessment and Facility Plan. Additionally, in late 1997, the City Council appointed an Ad-hoc Library Planning Committee to recommend the selected consultant City Council Report Tustin Library Needs Assessment and Facility Plan October 5, i998 Page 2 and to work with the consultant to develop an understanding of various library constituents, their concerns and issues, identify special library needs and priorities, seek community consensus and recommend to the City Council a vision for future library services and facilities in Tustin. Based on the work of the consultant and Ad-hoc Committee and the participation of the community in the form of focus groups and a community-wide workshop, the Tustin Library Needs Assessment and Facility Plan has been completed and was recommended for approval by the City Council at the Ad-hoc Library Planning Committee's meeting on September 29, 1998. In summary, the Plan recommends that the Tustin Library continue as a part of the Orange County library system but that the City work toward a finanCial mechanism for construction of a library expansion project in the Civic Center at an approximate cost of $11 million. The report provides an assessment of space and services needed to meet current and future demand for library services. The report recommends that if Tustin residents desire enhanced library services, then a household parcel assessment could provide a large portion of both capital and operating costs for the expanded facility. One of the issues to be determined would be whether there would be support from the County Board of Supervisors to include the North Tustin unincorporated area, which is part of the total service area of the Tustin Library, in any parcel assessment or tax. Should the City Council wish to proceed with supporting the concept of a ballot measure to raise funds for the library project, it would be recommended that a meeting with Supervisor Spitzer and other County Board of Supervisor members be scheduled to discuss this matter. In addition, the Ad-hoc Library Planning Committee also recommended that the City Council appropriate an amount not-to-exceed $20,000 for the purpose of hiring a consultant to poll the community to determine what type of community response might be expected from a ballot issue to fund an expansion of the Tustin Library. Christine A. Shingl~on Assistant City Manager CAS :kd\ccreport\libraryassessplan.doc Attachment DATE: OCTOBER 5, 1998 NO. 10 10-5-98 Inter-Com TO: FROM' SUBJECT: WILLIAM A. HUSTON, CITY MANAGER OFFICE OF THE CITY CLERK ATTACHMENTS- TUSTIN LIBRARY NEEDS ASSESSMENT AND FACILITY PLAN The Tustin Library Needs Assessment and Facility Plan related to this report will be delivered to the City Council under separate cover on Thursday, October 1, 1998. Valerie Crabill Chief Deputy City Clerk AG:MEMOSPCV • • CITY OF TUSTIN September, 1998 OIM M M M E M M IM • • Acknowledeements Last year, the City established an Ad Hoc Library Planning Committee to guide the Library Needs Assessment and Facility Plan. The Committee members have informed themselves during the process, and guided this study with hard work and dedication. The members of the Committee are: Ad Hoc Library Planning Committee Mayor Pro Tem Thomas R. Saltarelli Mayor Pro Tem Tracy Wills Worley Jonathan Abelove, Tustin Unified School District Dr Dawn Bruner, Community Representative Valerie McNamara, Community Representative Nancy Reynolds, Irvine Valley College Information Services John Adams, County Librarian, Orange County Public Library Christine Shingleton, Assistant City Manager, City of Tustin Alternate: Ms. Tammie Bullard, Board Member President, Tustin Unified School District • • City of Tustin Library Needs Assessment And Facility Plan Table of Contents Executive Summary I 1 Introduction 1 2. Objectives of the Study 2 3 Tustin Branch Library. Profile of Library 4 Services and Resources 4 Tustin Demographic Profile 13 5 Community Involvement in Planning 18 6. The Role of Technology in Public Library 22 Services 7 Findings and Standards for Tustin Library 26 Services 8. Financing Public Library Buildings 35 9 Operating Costs for an Expanded Facility 42 10. An Action Plan for Developing Tustin 45 Library Services Appendices: A. Library Profile Data B. Demographic Data C. Community Involvement. Meeting Notes D Analysis of an Approach for Financing Library Development • • EXECUTIVE SUMMARY • 410. City of Tustin ibrary Needs Assessment & Facility Plan City of Tustin( Library Needs Assessment and Facility Plan Executive Summar The City of Tustin has a very busy and vital public library which is operated by the Orange County Library The City recently established an Ad Hoc Library Planning Committee to study public library services to achieve the following objectives: • A definition of the desired roles and level of library services for the City of Tustin, with the identification of key issues and priorities for service delivery; • Evaluation of current services and facilities being provided, and an analysis of future library facility needs; • Identification and evaluation of alternate methods of providing library services and facilities; • Development of recommendations and associated costs for implementing desired services and facilities; • Recommendations for performance measures to track library effectiveness in the future. Community Involvement. This study found that community members in Tustin are very interested in library services and are quite knowledgeable about those services and the deficiencies in the current operations. Community involvement was obtained in three ways: • Through the active participation and support of the Ad Hoc Library Planning Committee; • Through a series of four small group meetings for key library users including parents with school age children, seniors, high school students, and members of the Hispanic community and the Southwest neighborhood; • Through a well - publicized community -wide Town Hall meeting. The results of these interviews and meetings is included in Chapter 5 of this study, and the actual comments are reflected in Appendix C. David M. Griffith & Associates i • City of Tustin ibrary Needs Assessment & Facility Plan The Changing Community. The demographic profile of the Tustin community shows significant change and diversity in the population, with the number of young children growing rapidly At least three development projects are currently underway which are expected to increase the size of the City's population in the next several years. These indicators will result in an increase in demand for library services. The Current Library Facility. The Library facility itself is twenty -four years old, and is approaching the end of its usable life, unless significant renovation is undertaken. It is showing signs of heavy and constant use, for approximately one thousand people visit the library daily This is a very significant level of use, and at this rate, the typical building systems wear out much more rapidly —from automatic front doors to plumbing. This study recommends a high level of performance measurement in order to best analyze and monitor library use and patron satisfaction over time. It is important to put these measures in place now, so that improvements in the facility can be evaluated by patron measures of satisfaction. The Impact of Technology on Libraries. The changes that technology is bringing to public libraries across the country will develop the library into a new type of service, while continuing the more established programs of service- - books, literacy and programs for adults and children. In today's on -line environment, searching worldwide for the right information is practical and effective. In addition, it is possible to search a library's on -line data bases from home, work, a community center kiosk, or even from the library These new services complement and enhance the basic business of the library -- bringing people and knowledge together There are some reductions in needed floor space possible in the reference and research collections of larger libraries. In these libraries, sets of encyclopedias are reduced to a single CD -ROM and its work station, and some periodicals are no longer bound and shelved because they can be obtained easily quickly and cheaply on line. In these cases, some library space planners believe that the number of volumes housed in the library might be reduced by 5 to 8 percent. There is, at the same time, a need for increased space for computer workstations to access on -line information, which may increase overall library space needs somewhat. The actual amount of increase depends on the facility, the priority it places on reference services, and the level of public use. Library Expansion Alternatives. To set a standard for the space needed for the Tustin Library it will be necessary to compromise between the existing and generally accepted public library standard, and the Orange County Library David M. Griffith & Associates ii • 0 City of Tustin ibrary Needs Assessment & Facility Plan standard. To develop a facility larger in comparison to the neighboring branches would be a difficult balancing act in terms of budget and allocation of resources such as technology and programs such as literacy In order to accomplish such a compromise, we are recommending the use of .3 square feet per capita. The current facility has an excellent location, according to the community participants. This location should be maintained if at all possible, as it is convenient to transportation corridors, schools and is centrally located in the City The alternatives for expanding the library services were developed based on the Library remaining in its current general location in the Civic Center Alternative sites outside the Civic Center area were not considered. It should be noted that in evaluating facility expansion alternatives, it was assumed that the Tustin Library would continue to be a part of the Orange County Library System. The base level financial analysis in Chapter 3 indicates that the revenue the Tustin Library generates is not sufficient to cover the operating costs. Because of this, there is no financial incentive for the City to withdraw from the County Library and establish an independent municipal library There will be additional costs to operate a larger facility and this additional cost will be subject to negotiation between the City and County Library While the City may shoulder the cost of the expansion, there will still be an imbalance between revenues and expenses. Chapter 9 outlines the anticipated operating costs for an expanded facility There are several ways to develop a library of 30,000 square feet in the current Civic Center location. They are: Alternative A Add a second story onto the existing facility Alternative B Add a wing onto the existing facility• a 15,000 square foot single story addition and remodel Alternative C Remove the existing facility and construct a new facility in the same place. Preliminary estimates for construction range from approximately 8 to 10 million dollars. Inflation and the state of the economy at the time of soliciting construction bids could also affect these estimates. Not included in the estimates at this time are the costs for additional materials and technology upgrades. Financing Public Library Construction. Local government funds have provided the vast majority of funding for public library construction in the United States during the last thirty years. Between 74 and 78 percent of all public library construction costs were from local sources. Recent "take- backs" of local revenues by the State of California have severely strained local jurisdictions' budgets. Special or new revenues will probably be needed by Tustin to fund the construction of a new library facility at any time in the near future. Legislation to create state bond financing to support construction of public library facilities David M. Griffith & Associates iii • City of Tustin Library Needs Assessment & Facility Plan recently failed to pass the State Legislature. This legislation has been sponsored by the California Library Association and carried by a bi- partisan group of elected Legislators; it is likely to be reintroduced in the next session of the Legislature. Neither federal or non - public sources of funding appear to be likely sources of funding for an expanded Tustin Library This study analyses one potential source of funding and finds that a per household assessment of approximately $40 per household annually for the City of Tustin and the North Tustin area will provide sufficient funding to construct a 30,000 square foot facility and support the added operating costs. The Library Planning Effort. Constructing a new facility or expanding an existing one is a complex task that will involve the efforts of many groups and organizations. There are several key participants in the development of a design for a new facility. • The community of users • The community of non -users • The City staff • The Library staff • Volunteers and Friends of the Library • Physical plant and maintenance staff • The architectural firm, including engineers and interior design personnel In addition other professional resources may be needed including a fund raiser, campaign organizer, and a building consultant (County Library staff can perform this last role). The schedule for constructing an expanded facility and the next steps in the process are as follows: ate Activity Oct. — Feb. '99 Develop financial plan; poll voters Feb. 15, 1999 City Council adopts resolution for election March 11, 1999 Official request to call for a special election. Impartial analysis and arguments due to County election officials March 22, 1999 Last date to submit rebuttals March — July '99 Development of library building program March — June '99 Campaign for passage of library parcel tax June 8, 1999 Special election for parcel tax July — Sept. '99 Selection of architect Sept. — Feb. 2000 Design development Feb. — May 2000 Plan review May — June 2000 Bids for construction August 2000 Construction begins Summer, 2001 New Library opens David M. Griffith & Associates iv • 410 City of Tustin ibrary Needs Assessment & Facility Plan There are many different ways to improve public library services in Tustin. This study outlines the options and alternatives available to the community The Council, with participation of the community will have the opportunity to decide the most appropriate manner and method for proceeding. It is an exciting and complex undertaking, but one that will be ultimately rewarding for this dynamic and growing community David M. Griffith & Associates v • • 1. INTRODUCTION • • 1. INTRODUCTION There are many challenges facing cities and public libraries these days. The environment for planning is in a state of constant change. That is why the City of Tustin is developing a plan for public library services that will provide some stability and direction during these times. Last year, the City established an Ad Hoc Library Planning Committee to assist in this endeavor They have informed themselves during the process, and guided this study with hard work and dedication. The members of the Committee are: Mayor Pro Tem Thomas R. Saltarelli Councilwoman Tracy A. Worley Dr. Nancy Reynolds, Irvine Valley College Information Services Dr Dawn Bruner, M.D Community member Ms. Valerie McNamara, Community member Mr Jonathan Abelove, Tustin Unified School District Ms. Tammie Bullard, Tustin Unified School District Mr. George Maranon, Tustin Unified School District Mr John Adams, County Librarian, Orange County Public Library Generous staff support and guidance was provided by Assistant City Manager Christine Shingleton. David M. Griffith & Associates Page 1 • • 2. OBJECTIVES OF THE STUDY • City of Tustin rary Needs Assessment & Facility Plan 2. OBJECTIVES OF THE STUDY The City of Tustin wishes to develop a comprehensive approach to public library service. As a member City of the Orange County Public Library the City participated the recent restructuring of the County Library This restructuring clarified the roles and responsibilities of the County Library and of the member Cities. The recent agreement has a provision for supplying additional hours and services which can be negotiated between the City and County Library This study will give the City of Tustin the framework from which to further develop public library services in Tustin. The principal objectives of this study are: • A definition of the desired roles and level of library services for the City of Tustin, with the identification of key issues and priorities for service delivery; • Evaluation of current services and facilities being provided, and an analysis of future library facility needs; • Identification and evaluation of alternate methods of providing library services and facilities; • Development of recommendations and associated costs for implementing desired services and facilities; • Recommendations for performance measures to track library effectiveness in the future. In conducting this study, input was solicited from key community stakeholders throughout the Tustin Community This was achieved in the following ways: (1 ) The Ad Hoc Library Planning Committee which reviewed the work of the study as it progressed. The Committee included representation from the community, the Tustin Unified School District, the City Council, and the County Library (2.) Key community groups were interviewed in focus group format to assist with clarification of library needs and desired services. These groups included parents of your children, high school students, senior citizens, and members of the Latino community (3) A community-wide Town Hall meeting was held at the Community Center The purpose of this meeting was to confirm or clarify the results of the community group interviews. David M. Griffith & Associates Page 2 • City of Tustin rary Needs Assessment & Facility Plan The chapters which follow present the results of our analysis of information and data about the library and community; this is shaped by the contributions from the community as shown above. David M. Griffith & Associates Page 3 • • 3 TUSTIN BRANCH LIBRARY PROFILE OF LIBRARY SERVICES AND RESOURCES • 0 City of Tustin rary Needs Assessment & Facility Plan 3 TUSTIN BRANCH LIBRARY. PROFILE OF LIBRARY SERVICES & RESOURCES This chapter provides an overview of the services provided by the Tustin Branch of the Orange County Public Library (OCPL) and the resources which are used to deliver library services from the Branch. The Tustin Branch is one of twenty-seven branch libraries operated by the Orange County Public Library System. The primary service area for the Branch is the City of Tustin, but also includes the unincorporated North Tustin area. The Orange County Public Library is a County Free Library established for taxing purposes as a dependent special district under the Education Code of California State Law In 1993 the property tax shift by the State which came in an effort to balance the state budget, resulted in a tremendous loss of revenue to the County Libraries organized as dependent special districts. Orange County Public Library lost 34% of its funding. In 1996 -97, the County and the Cities served by the County Library came to an agreement to alter the governance structure of the system. This agreement was approved by the County Board of Supervisors and the City Councils of all participating Cities. The agreement provides for a governing board made up of a City Council member from each member City and representation from the Board of Supervisors (for the unincorporated areas). The Board has delegated to this group the responsibility to approve budgets and allocate funds, set priorities and engage in system -wide planning. A strict funding allocation system was adopted; this includes approval of the central administrative, technology and support function proposed expenses, the dividing the remaining resources among the 27 facilities. There are certain set - asides for system -wide priorities such as reference. The method for dividing the remainder of the revenue available is by formula: 30% based on City population (unincorporated areas are treated as one city); 30% based on circulation, and 40% based on property tax contribution. (1 ) Tustin's Existing Library Facility. The Tustin Library is located in the Civic Center area, at 345 East Main Street, adjacent to the Community Center and City Hall. The lot location is on a corner with parking in front of the building and is a contiguous lot with the Community Center and City Hall. There are an adequate number of spaces; however special events at the other two facilities sometimes make library parking more difficult. The facility is owned by the County Library but is constructed on City property The City and County have a lease agreement which specifies that the building will become property of the City at the completion of the lease agreement (in July, 2024). The City maintains the grounds and parking lot, and for this activity, is reimbursed by the County Library The table which follows outlines key descriptive information regarding the existing Branch Library facility. David M. Griffith & Associates Page 4 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 • 411 City of Tustin rary Needs Assessment & Facility Plan Characteristic Descri • tion Facilit Aye O. - ned in 1974 Size 15,000 s.. ft. Features Public Meeting Room Friends of the Library Bookstore Children s & Adult Study Areas Reference & Clerical Workrooms Branch Manager's Office Shared, Off -Street Parkin (1) Includes 375 square feet occupied by the Friends Bookstore. The facility was constructed in 1974 and is approaching the end of its usable life, unless significant renovation is undertaken. The exterior is holding up well, and is in good condition. However the one story facility appears dated and dwarfed by the larger, more modern and recent construction of the City Hall and Community Center A plan of' the Civic Center area showing the library s location in relation to the other facilities in included in Appendix A. The first impression of the facility upon entering is of a dark and quiet space. The lighting is, at best, subdued, and is inadequate in the stack areas where clear illumination all the way to the floor is necessary The facility does not make use of natural light, having only one window with a seating area adjacent. Relamping and replacing ballasts in all the fixtures would probably improve the quantity of light throughout the building. The electrical service is provided in a casual way with large cables, wires, and connections lying on a table in the staff work area. This is an unsafe arrangement, and should not wait for renovation for correction. No unusual conditions were noted with regard to the heating/ventilation /cooling systems; the air conditioning system was recently replaced. The library uses the County Library system s Dynix automation system for patron catalog and circulation functions. Nineteen terminals are located in the Children s and Reference areas, and thus, are easily accessible to patrons as they move through the facility Two computers and other computer - related resources am distributed throughout the Reference area, with most of them being fairly close to the Reference desk. However there is no clearly identified place for technology in the library a place with computers and assistance in using them. The ergonomics of the patron workstations are poor and is not conducive to lengthy research. This is probably an added incentive to patrons to use the equipment sparingly since demand for the library's technology resources is very high. The carpeting and furnishings are all well -used, but in adequate condition; it was replaced approximately 6 years ago. There appears to be a marginally adequate amount of seating, but it is crowded at the very busiest times. Perhaps most intimidating to users are the number of signs throughout the facility providing David M. Griffith & Associates Page 5 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 • City of Tustin rary Needs Assessment & Facility Plan instructions in many aspects of library use. The number of signs deters patrons from asking questions of staff and creates a somewhat unfriendly atmosphere. Interior facility maintenance appears adequate, but spotty It was apparent that the women s restroom ceiling had been defaced some time ago. A thorough cleaning would remedy this problem, and needs to be done. There were several other conditions of a similar nature in the facility The exterior is well - maintained and consistent in cleanliness and landscaping with the rest of the civic center area. The Library's meeting room doubles as a storage room and is not neat or tidy in its appearance. Its location at the far end of the facility, with double doors opening from the Children s area makes its use mainly for children s programs. There are two staff areas, one for Reference and Children s staff, and one Circulation Services workroom. The Reference and Children s area is small, crowded, and carved out of public service space in the area behind and adjacent to the Reference Desk. It is difficult to move through the space, because so many work areas and shelving units have been crammed into the area. The Circulation work area is conveniently located just behind the circulation desk, but it, too is very crowded. Several work surfaces and tables are at different heights, with computer keyboards at varying heights, making for working conditions that lack adequate ergonomic design. The safety issue regarding the wiring and cabling left on a table in this area has already been noted. The Library is showing signs of the heavy constant use it receives. Approximately one thousand people visit the library daily on the busier days. This is a very significant level of use, and at this rate, the typical building systems wear out much more rapidly - -from the front doors to the plumbing - -and the heavy use they receive accelerates the replacement needs. (2 ) Library Service Hours The Tustin Branch Library currently provides 60 hours of service per week. The table which follows outlines the number of service hours provided by the Branch by weekday Table 1 in Appendix A presents a graphic illustration of service hours by facility and day of the week. Weekday Number of Hours Sunda 0 Monda 11 Tuesda 1l Wednesda 11 Thursda 11 Frida 8 Saturda 8 Total 60 David M. Griffith & Associates Page 6 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 • • City of Tustin rary Needs Assessment & Facility Plan (3 ) Library Collection The collection of the Tustin Branch Library currently consists of 124 195 items (all formats). The table which follows provides detail on the composition of the collection by type of item: Tustin Branch Library Collection Composition (1) Item Number Percent of Cate or Total Books Adult: •Fiction & Non - Fiction 59 405 52 0% 47 8% •Reference 7 236 6 3% 5 8% •Rental 279 0.2% 0 2% Books Juvenile: 47 231 41 4% 38 0% Total, Books 114,151 100.0% 91.9% Audio - Visual •Cassettes 1 213 23 8% 1 0% •CD's 666 13 0% 0 5% •Books -on -tape 1 053 20 6% 0 8% •Videotapes 2 173 42 6% 1 7% Total, AV 5,105 100.0% 4.1% Music Scores & Records 74 100.0% 0.1% Pam•hlets /Pictures 685 100.0% 0.6% Periodicals 4,180 100.0% 3.4% Grand Total 124 195 100.0% 100.0% omposition o collection as reported by the Orange County Library System in March, 1998. Total excludes book bags. Adult fiction and non - fiction includes browsing collection, paperbacks and bestsellers. Source: Orange County Public Library System As the data indicate, the vast majority of the collection is composed of books. Adult fiction and non - fiction books represent about half of the total book collection while juvenile books compose slightly less than half. Videotapes compose the largest portion of the audio - visual (AV) collection; audio - cassettes constitute almost one quarter and books -on -tape constitute about one -fifth of the AV collection. The compact disc collection is limited, representing less than one percent of the Branch s AV collection. David M. Griffith & Associates Page 7 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 • IA City of Tustin rary Needs Assessment & Facility Plan (4 ) Library Services & Programs The table which follows provides a brief overview of the services and programs provided at the Tustin Branch Library Service Descri i tion Circulation Patrons of all ages may borrow items housed at the Tustin Branch or any of the other 26 OCPL branch libraries. Approximately 2.3 million items are held systemwide. Circulation services are supported by the OCPL systemwide automated catalog system. Inter - Library loan services are also provided. Reference Information/Reference and Reader's Advisory services are provided to patrons of all ages. Reference materials include print and electronic media and services including Internet access for patrons. Second level reference is provided by an OCPL Regional Reference Center. Reference needs beyond the scope of the OCPL Regional Reference Center are provided by the Inland Library System Reference Center. Electronic services offered via the OCPL automated system include full text access to over 800 periodicals. journals and newspapers with complete indexing, updated daily On -line access to collections of the Univ of Calif. libraries and to more than 40 medical, business and general reference sources such as Books In Print, the National Telephone Directory Collier's Encyclopedia, the Information Please Almanac and the American Herita•e Electronic Dictionar . Children s Programs Two eight week storytime sessions are offered annually Each session consists of three thirty minute storytime periods on weekday mornings or evenings. A four week Storytime session is offered during the summer. A nine- week Summer Reading Game, designed to help children maintain their reading skills over the summer, is open to patrons of all ages. A variety of theme/holiday- oriented craft and entertainment programs (funded by the Tustin Friends of the Library) are offered annually for children ages six and up. These events include Halloween, Winter, Valentine's Day and Spring programs. David M. Griffith & Associates Page 8 1 1 1 1 1 1 1 1 1 1 1 • City of Tustin Libr ry Needs Assessment & Facility Plan. Program Area Description Adult Programs During FY 1996 -97 the Library offered one Adult program; attendance was 415. Three other general Library presentations during the year drew another 464 attendees. In addition, the VITA Tax Assistance program is offered at the Tustin Branch from February April of each year. This program is free to all senior adults and low income individuals and families. Volunteer Program The Branch has an active Volunteer Program. Volunteers performs duties including book mending, shelving, and a limited range of clerical functions. Volunteers also deliver library materials to patrons who are physically confined. In FY 96/97 the Branch had 383 volunteers who donated 3,612 hours of service. During the summer, Teen Volunteers assist with the Summer Reading Program, and Children's Storytime and craft programs. Older teens also assist with shelving. A limited number of high school honor student volunteers perform similar activities during the school year. Approximately 45 teen ''. volunteers contribute an average of 1,000 hours of service each summer (5.) Patron Equipment 1 The following major equipment items are housed in the branch for patron use: 1 1 1 1 1 1 1 • 19 On -line Public Access Terminals (on -line catalog) • 1 Internet Station • 1 CD -ROM Station • 2 Microfiche /film Reader - Printers (6.) Branch Staffing The Tustin Branch Library has a total of 12.0 authorized fl'1!, in FY 97 -98. The composition of the Branch staff is as follows: 3.0 FTE are professional librarians; 2.5 bTE are para - professionals and the remaining 6.5 1?'1'E are clerical support staff. The table which follows provides detail of the Tustin Branch staffing by classification and function. David M. Griffith & Associates Page 9 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 • City of Tustin rary Needs Assessment & Facility Plan Tustin Branch Library FY 97 -98 Staffing Position FTE Function Sr. Administrative Librarian 1.00 Branch Mana.er Librar S•ecialists 2.00 Reference & Children's Librarians Librar Assistants 2.50 Reference & Children's Svcs Office Su.ervisor A 1.00 Circulation /Clerical Su•ervision Librar Clerk 3.50 Circulation Services Pages 2.00 Circulation Services Total 12.00 45 Source: Orange County Public Library System (7 ) Program Attendance & Library Service Levels The Tustin Branch Library provides programs for children and adults year round. As data in the table which follows indicate, the overwhelming majority of the Branch s programming activity is related to children. Tustin Branch Library FY 96 -97 Program Statistics Program T •e No. of Pro's. Attendance Avg Attend. Children •Pre - school Storytime 32 1 044 33 • Children's Programs 11 1 060 96 *Class Visits 11 344 31 Subtotal 54 2,448 45 Adult Programs 1 415 415 Librar Presentations 3 464 155 Total 58 3,327 57 Source: Orange County Public Library System The table which follows provides FY 96 -97 library service data for the Tustin Branch. David M. Griffith & Associates Page 10 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 • City of Tustin Libr Needs Assessment & Facility Plan Tustin Branch Library FY 96-97 Service Overview Service Element Number Librarian FTE 3.0' Non - librarian FTE 9.0 i Total FTE 12.0' Open Hours ellM Circulation • Resident • Non - resident Total 188,23. 143,113 331,34 Reference 144,11 Gate Count 310,78 Holdings 124,323 Registered Borrowers 44,018 Population (2) 50,68 Sq. Footage C1 (1) Holdings as of March 1998. (2) City of Tustin population as of 1990 census. Key FY 96-97 service level indicators for the Tustin Branch are as follows FY 96 -97 Indicator Value Total Circ Per O•en Hr 1 1 0 Total Circ Per FTE 27,612 Total Circ Per Volume 2.7 Reference Per O•en Hr 48.0 Reference Per Lib FTE 48 038 Gate Count Per Chen Hr 104 Holdin•s Per Ca•ita 2.5 S•. Foota•e Per Ca, ita 0.30 (8.) Operating Costs & Revenue Annual operating expenses for the Tustin Branch Library totaled $969,519 in FY 96-97 Revenues directly associated with the Tustin Branch totaled $687,180, approximately 31% less ($282,339) than the Branch's operating costs. Property taxes compose the largest proportion of the Branch's funding. Sixty percent (60 %) of the Branch's total operating costs are related to public service operations David M. Griffith & Associates Page 11 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 • • City of Tustin rary Needs Assessment & Facility Plan Tustin Branch Library FY 96 -97 Actual Revenues & Operating Expenses Cate or Amount % of Total Revenues Property Taxes 580 564 84 5% Fines & Fees 53 097 7 7% Public Lib.Funds (1) 37 874 5 5% Donations 15 645 2 3% Total 687,180 100.0% Operating Expenses Salaries & Benefits 376 843 38 9% Facility Operations 44 215 4 6% Office Supplies 6 265 0 6% Library Materials 154 000 15 9% Equipment Maint. 2 454 0 3% Subtotal 583 777 60 2% Systemwide Svcs (2) 385 742 39 8% Total 969,519 100.0% (1) PLF estimate based on $0.58 per capita. (2) Systemwide services includes technical services (materials acquisition, cataloging and processing), automated systems support, materials delivery services, systemwide administrative support services (accounting, human resources, payroll, community and public relations, systemwide administration, etc.) and countywide overhead costs. Source: Orange County Public Library System David M. Griffith & Associates Page 12 • • 4 TUSTIN DEMOGRAPHIC PROFILE 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 • 11111 City of Tustin rary Needs Assessment & Facility Plan 4 CITY OF TUSTIN DEMOGRAPHIC PROFILE This chapter provides an overview of the community served by the Tustin Branch of the Orange County Public Library The section provides an overview of the size and characteristics of the City's population. The section also provides a brief overview of long -range land use plans which are likely to have an impact on the City's population. (1 ) Size and Characteristics of the City's Population The population of the City of Tustin was estimated by the Department of Finance to be 66,420 as of January 1 1998. The City s population has grown by 31% (15,731 residents) since the 1990 census. Data from the 1990 U S Census, presented in the table which follows, suggest that Tustin has limited ethnic and racial diversity City of Tustin Population By Ethnicity /Race & Hispanic Origin Ethnicit /Rac Cit Residents # % Afr Amer 2 895 5 7% Amer Indian 274 0 5% Asian /Pac. Is. 5,260 10 4% White 37,127 73 2% Other 5 133 10 1% Total 50,689 100 0% Hispanic 10,508 20 7% Non - Hispanic 40,181 79 3% Source: 1990 U.S. Census. However more recent population data provided in the Tustin Chamber of Commerce s community economic profile suggests that the City's population has become more diverse since the 1990 census largely due to changes in the proportion of Hispanic and White residents. It should also be noted that, although individuals of Asian or Pacific Islander descent were a small segment of the City's total population in 1990, there were more than one dozen different ethnic groups represented within this segment of the City's population. Fall 1997 enrollment data for the Tustin Unified School District, presented in the graph is generally consistent with data from the Chamber These data suggest that the Tustin s school -age population is considerably more diverse than the City's total 1990 population. David M. Griffith & Associates Page 13 • City of Tustin rary Needs Assessment & Facility Plan Tustin Unified School District Fall 1997 Enrollment White 42% Af Am. 5% Fil Asiarl4.l 2% 9 %1% Hispanic • Hispanic ■AI o Asian 0 Fil • White D Af Am. Data regarding the distribution of the City's 1990 population by age indicate that Tustin is fairly young community The age distribution of Tustin residents as reported in the 1990 U.S. census was as follows: • Less than one - quarter (23 %) of the City's residents in 1990 were 45 years of age or older. • Just under half (45 %) of the City's residents in 1990 were between 22 and 44 years of age. • About one - quarter (24 %) of the City's residents in 1990 were 17 years of age or younger The 1990 U.S census data indicate that the majority (64 %) of Tustin residents have attended college; one quarter of the City's 1990 residents possessed a Bachelor's or higher level degree. A relatively small proportion (14 %) of the City's 1990 residents did not possess a high school diploma or equivalent. David M. Griffith & Associates Page 14 • • City of Tustin rary Needs Assessment & Facility Plan 1990 Tustin Residents' Educational Attainment (Residents 25 Years or Older) Grad /Prof. Degree Non -H.S. Grad 0 Bachelor's ° 14% Degree 18% Assoc. Degree 9% Some College 30% H.S. Grad /GED 22% Recent demographic data from the Chamber of Commerce Community Profile suggest that Tustin is an economically diverse city The Chamber publication reports the median household income for Tustin to be about $44,000 The 1990 U.S Census reported the City's median household income as $38,433 therefore, it appears that income levels of the City's household's may have risen somewhat during the 1990's. Residents in the City of Tustin are more likely to reside in multi- family and attached dwellings than their counterparts in other Orange County cities as half the housing stock in most Orange County cities is single family detached homes. The housing stock in Tustin is, however, largely multi -family and attached dwellings; as a result Tustin has a higher proportion of residents who rent than most Orange County cities. Recent publications from the Chamber of Commerce indicate that about 56% of Tustin s residents are property owners. (2 ) Local Educational Institutions The City of Tustin is served by the Tustin Unified School District which operates approximately ten elementary schools, four middle schools and one high school within the City Fall 1997 enrollment for the Tustin Unified School District, by level, is as follows: David M. Griffith & Associates Page 15 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 • 4. City of Tustin rary Needs Assessment & Facility Plan Tustin Unified School District Fall 1997 Enrollment Level Numbe Percen Kindergarten 1,321 8.8% Grades 1 - 5 6,421 42.9% Grades 6 - 8 3,325 22.2% Grades 9 - 12 3,91. 26.1% Total 14,981 100.0% As the data indicate, more than half of District's students are enrolled in the sixth grade or below educational levels in which students are endeavoring to learn and master reading, spelling and other basic academic skills. The City is also home to a number of pre - school and day care centers and to approximately a half dozen private K 12 schools. There are no higher education institutions located within the City of Tustin, although there are several community colleges located in neighboring communities. (3 ) Business & Industry The Chamber profile indicates that there are approximately 1,600 business located within the City employing about 27,000 people. Among the City's major employers are eight manufacturing firms, the Tustin Unified School District, the City of Tustin, and several retail sales companies. (4 ) Issues Potentially Impacting Citv's Population There are at least three projects currently underway which are expected to impact the size of the City's population in the next several years. These efforts are: (1) reuse plans for the Marine Air Corps Station, (2) completion of development in East Tustin and (3) potential annexation of North Tustin. These efforts are described in the sections which follow. • The Marine Corps Air Station (MCAS) is being eliminated as a U S defense installation and, as such, plans are underway for converting the space to civilian use. The MCAS Reuse Plan calls for the development of the 1,600 acre site to space for business, light industrial, research, retail, residential and recreational purposes. Current plans call for the development of approximately 4,000 residential units on that portion of the former MCAS site development within the City of Tustin. Construction of this project is projected to occur over approximately a twenty -year period ending in 2020. The planned residential development is projected to increase the City's population by about 10,800 residents. David M. Griffith & Associates Page 16 • City of Tustin rary Needs Assessment & Facility Plan • Development of the East Tustin master planned community also called the Tustin Ranch has been underway since 1995. This project is expected to be completed in the next several years. At build -out, the development will contain approximately 8,100 residential units. • Another factor which would impact the size of the City's population would be the annexation of additional unincorporated space surrounding the City Although there are no serious discussions or negotiations regarding annexation underway at this time, it should be noted that North Tustin is an existing community which could, at some point in the future, be considered for annexation. This community with a population of approximately 26,000 residents is built -out, generally composed of upper income, married, empty nester' households, residing in single family dwellings. The MCAS reuse plan and the completion of the East Tustin development are projected to increase the number of residents to approximately 73,030 in the City s incorporated area, an increase of 6,610 residents over the City's estimated January 1998 population of 66,420. This estimate reflects the fact that approximately 3 150 people currently reside on the base; they are military personnel and their dependents, and will be relocated to a new facility soon. An additional 26,000 residents in the North Tustin unincorporated areas are also within the City's sphere of influence. David M. Griffith & Associates Page 17 • • 5 COMMUNITY INVOLVEMENT IN PLANNING • • City of Tustin rary Needs Assessment & Facility Plan 5. COMMUNITY INVOLVEMENT IN PLANNING A key part of this study has been bringing the community into the process of determining desired library services and roles for the future. This has been accomplished in several ways. This chapter describes the various methods employed to obtain community involvement and the results of such participation. (1 ) Ad Hoc Library Planning The Ad Hoc Library Planning Committee has guided this study from the beginning. They were the original contributors to the Library role and needs, and set the stage for the later contributors. The Committee discussed the role of the Library in the community on several occasions, assisted in planning the Town Hall meeting, and visited neighboring libraries to learn how public libraries can reflect community identity and priorities. The Committee felt that the facility is a key symbol of the community and its commitment to its citizens. They described it as a gathering place for the community an important place for activity community building. They expressed concerns about the current facility —that it did not seem to have this function —and felt that the existing facility constraints on size and use were responsible. The current location, however, was viewed as ideal, and there was a considerable discussion about how the facility might be improved and expanded on the existing site. Committee members saw two new libraries and two recent facilities on a tour that helped clarify further the way they wanted the Library to reflect the community The newly opened Mission Viejo Library and the Aliso Viejo Branch of the Orange County Public Library were visited as were the Huntington Beach and Newport Beach Libraries, both constructed within the last ten years. To committee members, the physical facade was an important representation of the Library in the community and they felt that the Library should match the rest of the Civic Center area in this area. The aspect of children's services was carefully evaluated by the Committee members, who expressed a strong desire to improve and expand this aspect of service in an improved facility (2 ) Small Group Meetings As a key part of the Tustin Library Needs Assessment and Facility Plan, small group meetings were held with four groups on April 8 and 9 1998. The purpose of these meetings was to determine the perceived role of the Library in the community The groups were asked questions about current Library use and needs as well as Library space and design questions. The following is a brief analysis of the comments received. Complete comments of the meetings are included as Appendix C of this report. Parents with School Age Children (Grades 5 8) Parents and children from three middle schools were invited to attend the meeting at 5:30 p.m. on April 8, 1998. Approximately 8 parents and 6 children David M. Griffith & Associates Page 18 • City of Tustin rary Needs Assessment & Facility Plan attended, the children were from 5th, 6th, 7th and 8th grades. The meeting was held in the Utt School Multi- Purpose Room. Seniors Approximately 12 seniors attended a meeting at the Tustin Area Senior Center on April 9 1998. They were invited by the City and by the Senior Coordinator, Jim Box. A substantial number of the group were active Friends of the Library including the Volunteer Coordinator for the Library High School Students One Junior Honors English class from Tustin High School was interviewed for this study Approximately 18 students attended the lunch time meeting on April 9 1998. Pizza and sodas were served. Several teachers attended, but did not contribute to these notes. Members of the Hispanic Community & Southwest Neighborhood Residents Members of the Southwest Neighborhood met at the Tustin Family and Youth Center to discuss Library services at the invitation of the coordinator Gladys Kaiser There were approximately 16 people in attendance. The meeting was conducted in Spanish, with Ms Kaiser serving as translator for the library consultant and City staff. General Overview While all four groups were asked the same questions, the responses varied from group to group. For example, while the group of parents and school age children were very concerned about the Library's ability to meet the needs of school children, they were very practical in their concerns and had little to say about the more philosophical topic of the Library's role in the community The seniors, on the other hand, had a truly philosophical approach to Library services and were less detailed and specific on how that role should be developed. Common Elements among the Groups All groups strongly expressed the desire that the Library serve the educational needs of children. There was an emphasis on the Library as the meeting place for all Tustin s cultures and ethnic groups. All groups felt that the Library staff was friendly and helpful. The greatest areas of agreement among the groups came in the discussions of what services and features should be in an expanded facility There was a concentration on the physical comfort and attractiveness of the facility Additionally there was strong interest in improving technology access and service offerings using technology Finally three of the groups wanted to see the Library be more like a bookstore, with friendly signage and providing comfortable chairs as well as food and drink. Key themes that emerge from the review of the comments are: • The Library's role in meeting the educational needs of school age students • The Library's role in bringing community members together across cultural and ethnic boundaries David M. Griffith & Associates Page 19 • • City of Tustin rary Needs Assessment & Facility Plan • Needs for an expanded facility include a physically attractive and comfortable environment, with easy access to technology (3 ) Town Hall Meeting, June 4, 1998 The Community Town Hall Meeting was held on Thursday evening, June 4 1998. Although advertisements were taken out and flyers widely distributed, attendance was low approximately 20. The Ad Hoc Steering Committee attended as well and participated in the discussions. Participants were asked to talk about current uses of the Library the Library of the future, possible expansions of services and the facility and the location and natural adjacencies for the Library A complete recording of the notes of this meeting is included as Appendix C of this report. Primary current uses of the Library mentioned were children s collections and services and research. However those who mentioned they used the Library for research were quick to point out that the Library's collection did not provide enough in- depth materials; they indicated that they rely on obtaining materials from other libraries, through inter - system or interlibrary loan. The list of what participants wanted in the Library of the future was long, and included everything from expanded hours, to a change machine, to greatly increased collections, staff and space for programs and meetings. Participants saw opportunities for schools and library cooperation to improve children s access to libraries; others pointed out a variety of community groups and organizations that could benefit from a cooperative relationship with the Library Participants felt the Library needed to `break out' services to specific groups and designate parts of the Library for each group; for example, a Youth Services Area for teens, a Children s Area, a Research and Quiet Study and Meeting Rooms were among those mentioned. This idea came up again, when participants spoke about ways to expand the Library They made suggestions about having a variety of areas related to function, which included all the previous suggestions, and also included a coffee cart or snack area, a place to meet and talk, a combination of indoor and outdoor spaces. The emphasis was on having a place for community discussion and debate. The interest some expressed in having other cultural activities such as an art gallery were directed at improving the atmosphere of the Library rather than at developing a major art and preservation program. The Children s Area was the subject of much interest from participants, with many suggestions about how to create a safe, child -scale Library with a wide world of knowledge in it. Participants asked for a Library facility with a comfortable ambiance to it, with a variety of seating options, natural and electric light, ease of movement between indoors and outdoors. Most particularly participants asked for ease of orientation - -that the facility be so well organized that patrons would be able to orient themselves easily at any location in the building. David M. Griffith & Associates Page 20 • City of Tustin rary Needs Assessment & Facility Plan As to whether the Library was located in the proper part of Tustin, most agreed that the current location was good; some expressed concern about the availability of parking. In summary participants felt that the Tustin Library was limited in its collections, programs and services by the size of the facility All expressed a strong desire to see improvements in the facility All were interested in seeing their discussion lead on to further action to improve the Library facility David M. Griffith & Associates Page 21 • • 6. THE ROLE OF TECHNOLOGY IN PUBLIC LIBRARY SERVICES • City of Tustin rary Needs Assessment & Facility Plan 6 THE INCREASING ROLE OF TECHNOLOGY IN PUBLIC LIBRARY SERVICES Today's information revolution gives us tremendous resources, but it also makes our lives more complex. The changes driven by the global technology marketplace are vast, and they happen rapidly Just five years ago there was no World Wide Web. Looking back 20 years, the personal computer did not exist. Technology has changed how the world uses information. It is not just a different way to handle information, but a whole new way to generate and access information. Technology has also increased tremendously the amount of information available. Since the 1960's libraries have used technology extensively to automate many of the behind - the - scenes processes. In the last several years, the technological changes have become apparent to the public, with the introduction of the on -line catalog and many other computer -based indexes. The users of public library services have found a great improvement in the timeliness, accuracy and completeness of information by using automated information systems rather than printed books, catalog cards or other print - based information indexes. Today the library-using public is making use of computers at work and home as never before, and this factor has greatly increased the public s expectations for the technological capabilities of public libraries. With the new technological resources, a new but very important job for the library staff has become helping the library customers evaluate the accuracy and appropriateness of the information they obtain from on -line sources. The changes that technology is bringing to public libraries across the country will develop the library into a new type of service, while continuing the more established programs of service -- books, literacy and programs for adults and children. In today's on -line environment, searching worldwide for the right information is practical and effective. In addition, it is possible to search a library's on -line data bases from home, work, a community center kiosk, or even from the library These new services complement and enhance the basic business of the library-- bringing people and knowledge together The Orange County Public Library is making good use of its technology resources. The Library now has the opportunity to move ahead to excel in its technology use, making Internet technology much more readily available in all locations. To continue to serve its community well, the Library's technology must remain convenient, accessible, and easy to use. (1 ) The Impact Of Technology On Library Space Needs Is Mixed. In the late 1990's, it is appealing to talk about replacing the public library with a computer -based system. However, while computers have been incredibly helpful in providing information, they do not replace the library's broad array of services and rich multilingual print collections. A recent study of public libraries and technology found that libraries need both - -the physical space and the virtual library of information available on -line: David M. Griffith & Associates Page 22 • • City of Tustin rary Needs Assessment & Facility Plan Even in an era of increasing availability of networked electronic information, libraries must still confront the problems of space, buildings, and the physical public access to ensure that the gateways to that electronic information are open to all. (Public Libraries, Communities, and Technology. Twelve Case Studies. November 1996, Council on Library Resources.) Several factors indicate that extensive use of on -line services and resources may in fact, increase the need for the more traditional library services. • Use of automated on -line catalogs has increased circulation, because people find more information with the keyword search capabilities than they could find using the old card catalogs. • Increasing the number of points of access -- providing a dial -up on -line catalog, or putting on -line catalogs in schools, shopping centers or community centers - -makes it easier for people to use the library and find materials they want. • Using on -line technology and the Internet, searchers are finding many more sources of information than they did from manual searches of print indexes. • The computer terminal or personal computer is rapidly becoming the search tool most used in libraries. When people use the on -line catalog today they may search the holdings of the library they are in, but then go on to search databases and the holdings of other libraries around the world. Where a few years ago, people checked the on -line catalog and wrote down the location and holdings information, today people may read and print articles as they conduct their search. This means that people are spending longer at the workstation while engaged in a search. This change means that more work stations are needed to accommodate the new way that work stations are used. In combination, these various factors suggest that: • Increased availability of technology and information is increasing the use of public libraries; • The way people use libraries is changing. There are some reductions possible in the reference and research collections of larger libraries. In these libraries, sets of encyclopedias are reduced to a single CD -ROM and its work station, and some periodicals are no longer bound and shelved because they can be obtained easily quickly and cheaply on line. In these cases, some library space planners believe that the number of volumes housed in the library might be reduced by 5 to 8 percent. There is, at the same time, a need for increased space for computer workstations to access on -line information, which may increase overall library space needs David M. Griffith & Associates Page 23 • • City of Tustin rary Needs Assessment & Facility Plan somewhat. The actual amount of increase depends on the facility the priority it places on reference services, and the level of public use. (2 ) Issues In Making Technolo2v Decisions Will Need to Be Addressed. The Orange County Library will be making a number of decisions related to its technological resources and services during the next several years. These decisions will affect the amount of technology resources available in Tustin and the speed at which changes are made. Among the issues which will certainly be addressed are: • In- Library and Remote Access. Access to library services will need to balance in- library and remote access options. Technology will need to be available to make the library easy to use, convenient and friendly Part of this change means 24 -hour access, like today's grocery stores, fast food restaurants, and convenience stores. • Automated System Security. An excellent security program should be in place and must be maintained. The Library's holdings and databases are a very valuable part of the Library's infrastructure, and damage to such a system would be a tremendous loss. • Staff Training and Development. The use of newer technologies throughout a library system such as Orange County's means that all staff are now or soon will be working extensively with on line sources and information. Before the advent of the Internet, library staff could tell a customer with some confidence, that the material they sought was or was not in the library Now librarians need training in finding, evaluating and using the cyber -world of information sources of the Internet, so they can make informed recommendations to their customers. This requires constant training and a clearly outlined program of staff development. • New Technology Purchases. The Library will need to maintain clear-cut criteria for technology purchases and standards to help evaluate new acquisitions. Public libraries, by their nature as government- funded organizations, are not markets for riskier cutting edge technology Libraries tend to adopt technologies as they mature and applications specially geared to libraries are introduced. The Orange County Library Public Library will need to stay current with technology in the library field, while monitoring the innovations being developed in this area. In making technology decisions, the Library should seek to balance the needs of the most advanced computer scientists with the needs of those without resources and access to technology • Telecommunications. The Library will need to maintain a state of the art telecommunications infrastructure to ensure the timely provision of information. Because the Internet and many on -line databases are accessed via telecommunications, the Library will become more and David M. Griffith & Associates Page 24 • 0 City of Tustin rary Needs Assessment & Facility Plan more dependent on the quality and speed of its telecommunications infrastructure. • Obsolescence. A significant financial planning challenge will become apparent as the Library purchases more computer and electronic equipment. The capitalization cycle for this equipment is much shorter than for traditional Library capital equipment such as tables and steel shelving. Although computers can reliably function for 10 years or more, in reality they become obsolete in 2 -5 years. Today the lifetime of a desktop computer is typically estimated at 3 years. For equipment with heavy public use, three years may be too long. David M. Griffith & Associates Page 25 • • 7 FINDINGS AND STANDARDS FOR TUSTIN LIBRARY SERVICES • 48 City of Tustin rary Needs Assessment & Facility Plan 7 SUMMARY OF FINDINGS RELATIVE TO TUSTIN LIBRARY SERVICES This chapter provides the case for improving the Tustin Library It covers a summary of the findings taken from the first part of this study including the facility evaluation, the community involvement and Tustin s demographic profile. Then it suggests operating or performance measures that will guide the Library toward a stronger community -based service. Thirdly this chapter addresses the appropriate facility size for the community of Tustin and North Tustin. (1 ) Findings Provide Support for Improving the Library Facility • The population of the City of Tustin was estimated by the Department of Finance to be 66,420 as of January 1 1998. The City's population has grown by 31% (15 731 residents) since the 1990 census. Tustin is fairly young community Just under half (45 %) of the City's residents in 1990 were between 22 and 44 years of age. More recent school enrollment figures indicate that the City's ethnic diversity is greater than the 1990 Census indicates, since the Tustin Unified School District's enrollment for 1997 reflects the following make -up: 42% White; 41% Hispanic; 9% Asian; and 5% African American. • More than half of Tustin Unified School District's students are enrolled in the sixth grade or below educational levels in which students are endeavoring to learn and master reading, spelling and other basic academic skills. • There are at least three projects currently underway which are expected to impact the size of the City's population in the next several years. The MCAS reuse plan and the completion of the East Tustin development are projected to increase the number of residents to approximately 73,030 in the City's incorporated area, an increase of 6,610 residents over the City's estimated January 1998 population of 66,420. An additional 26,000 residents in the North Tustin unincorporated areas are also within the City s sphere of influence. • There is no financial incentive for the City to withdraw from the County Library to establish an independent municipal library The revenue and expense information in chapter 3 of this report shows that current Tustin Library revenues are insufficient to cover the cost of operations. After conducting this initial financial analysis, the project has been conducted with the assumption that the Tustin Library will continue to be a part of the Orange County Library • The Library facility is twenty -four years old, and is approaching the end of its usable life, unless significant renovation is undertaken. The lighting is, at best, subdued, and is inadequate in the stack areas where clear illumination all the way to the floor is necessary The Library is showing signs of the heavy constant use it receives. Approximately one thousand people visit the library daily on the busier days. This is a very significant level of use, and at this rate, the typical building systems wear out much more rapidly - -from the front doors to the plumbing. David M. Griffith & Associates Page 26 1 1 • • City of Tustin rary Needs Assessment & Facility Plan ' • All groups interviewed as part of the public participation element of this study strongly expressed the desire that the Library serve the educational needs of children. There was also an emphasis on the Library as the meeting place for all ' Tustin s cultures and ethnic groups. All groups felt that the Library staff was friendly and helpful. ' • The groups interviewed felt there needed to be a concentration on the physical comfort and attractiveness of the facility Additionally there was strong interest in improving technology access and service offerings using technology 1 • Three of the groups wanted to see the Library be more like a bookstore, with friendly signage and providing comfortable chairs as well as food and drink. 1 • Community Town Hall Meeting participants felt that the Tustin Library was limited in its collections, programs and services by the size of the facility ' • Several factors indicate that extensive use of technology and on -line services and resources may in fact, increase the need for the more traditional library services. 1 • Increased availability of technology and information is increasing the use of public libraries. The way people use libraries is changing. 1 — The Library's role in meeting the educational needs of school age students ' - The Library's role in bringing community members together across cultural and ethnic boundaries — Needs for an expanded facility include a physically attractive and 1 comfortable environment, with easy access to technology ' (2 ) Measuring Library Performance Over Time Will Show Progress Toward Services Based on Community Needs. 1 1 1 ' Using output measures to establish a baseline and evaluate The Tustin Library's performance is recommended as a key part of this Report. These measures will allow the services provided to be tailored to the needs and requirements of the community The American Library For over a decade, many public libraries in the United States have measured their library services from the perspective of the customer by using output measures. Before this time, public libraries relied on state or even national standards to determine the level of service needed in a community The last national standards were issued in 1964 After that, the state of California was one of 4 states that - -in the absence of national standards- -chose not to develop standards for public library service. The current approach to developing services based on the community rather than state or national standards provides many opportunities for service to directly reflect community needs and interests. David M. Griffith & Associates Page 27 • 411 City of Tustin rary Needs Assessment & Facility Plan Association has published several books and workbooks to help staff develop and report on these measures of service. The Orange County Library is using some of these measures, and if the County Library staff will be the ones collecting and reporting these measures to the City of Tustin officials, more discussion should take place between County Library staff and the City regarding the amount of time needed to develop and report on these measures; the format of reports; and the frequency of the reports. Measuring public library effectiveness should be multi- dimensional, and should include efficiency cost - effectiveness, quality and relation to community needs. Each of these dimensions brings an evaluative component which should not be viewed without the other dimensions. Some examples of output measures for the major service areas of a public library are: Reference. Librarians provide patrons with answers to questions, guidance in using reference materials and sources, and recommendations for further research. Usually reference services are provided in the children s area as well as the general reference area of the library Possible output measures for reference services include: • Number of reference questions answered by librarians. • Number of work hours spent on reference services (This will help determine the number of reference questions answered per work hour, or the efficiency of the service). • Accuracy of reference questions answered. • Patron satisfaction with reference services (timeliness, customer service skills, etc.). Programs. Library staff provide programs and a variety of services to encourage library use and reading by children and their parents and all community members. These include Library tours, story times, summer reading programs, cooperative school and class visits, book discussion groups, author programs, and special programs targeted to specific age or ethnic groups or larger community events. Programs are provided in the library or at another site in the community Output measures of programs include: • Number of people attending programs. • Number of hours spent preparing and conducting the program (This will determine the number of work hour per program or the efficiency of the service). David M. Griffith & Associates Page 28 • • City of Tustin rary Needs Assessment & Facility Plan • Patron satisfaction with program (This can be determined by survey). Circulation Services. The activity of checking out library materials, handling overdue fines and fees, obtaining materials not currently in the library and maintaining patron records are basic to library services. While many of these functions are currently being replaced by technology it remains a staff - intensive function. Output measures for circulation services include: • Number of items checked out. • Number of hours spent on check out and check in functions (This will determine the efficiency of this service). • Number of patrons registered; number of patrons registered as a percentage of city population; number of patrons registered who live in another city or area. • Number of materials shelved within a specified time period so they are available to patrons. • Percentage of materials on the shelf in accurate order • Number of overdue notices generated; amount of overdue fines received. • Length of time it take to obtain an item from another library (Interlibrary Loan). • Patron satisfaction with circulation services (This is determined by survey). Collection Services. The process of selecting and acquiring and making available library materials is a complex series of activities, typically involving almost the entire library staff. It is particularly important that the collection reflect the needs and interests of the community, and because of this, the measures of patron satisfaction are critical to this service area. Both Children s and Adult collections should be evaluated. Output measures for collections include: • Success rate for patrons searching for a particular title, author or subject (This is determined by survey). • Number of circulations divided by the number of items held in the Library (Turnover rate). David M. Griffith & Associates Page 29 • • City of Tustin rary Needs Assessment & Facility Plan • Percent of orders for library materials filled within a specified number of days. • Number or percent of items processed within a specified number of days after receipt. • Number or percent of items cataloged within a specified number of days after receipt. • Number of items ordered, processed and cataloged each year. • Average number of days from a patron s request until it is checked out to the patron. • Percent of the library's collection evaluated and withdrawn from circulation. • Annual change (percent) in the size of the library's collection; new items added. These output measures are useful with policy makers, staff and the public review them and use them to evaluate the library's progress toward established goals and objectives. This progress is best measured over time, and when compared with the starting point. That is, the degree of change in a measure from year to year helps everyone see the impact of changes in service philosophy funding, and in the goals and objectives themselves. (3 ) Library Space Guidelines Require Careful Application to the Local Library. The current adopted service standard for libraries in the Orange County Public Library system is .2 square feet per capita. This is by far the lowest standard in currently use in metropolitan California libraries. There is a strong case to be made for a higher standard. However, even at this level, the projected population of Tustin, and the North Tustin area would seem to indicate that a larger facility is called for even at this low standard. The combined population of Tustin and North Tustin is 99,030, and this population, at the .2 square feet per capita rate indicates the need for a facility nearly 20,000 square feet in size. In the public library field, there has been a generally accepted standard of .5 square feet per capita. The standard should never be taken as a rigid rule, however, since each community has individual and unique library needs. When embarking on new construction, the opportunity also exists to include some partnerships or private- sector entrepreneurial activities such as a copy center, book store, coffee shop or other retail enterprise. These activities should not be included in the calculations for estimating the amount of space required for a public library facility David M. Griffith & Associates Page 30 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 • 4. City of Tustin rary Needs Assessment & Facility Plan There is some evidence that this .5 square foot per capita guideline is increasing. In analysis of recently completed new public library building projects, California projects reasonably comparable to Tustin s situation averaged .54 square feet per capita. Data from this analysis are outlined in the table which follows below. FY 96 -97 California Library Construction: New Buildings Completed (1) (1) Excludes two branch facilities of 2,400 sq. ft. or less and one main /system headquarters facility of approximately 143,000 sq. ft. Information is from Library Journal, December 1997 To set a standard for the space needed for the Tustin Library it will be necessary to compromise between the existing and generally accepted public Library standard, and the Orange County Library standard. To develop a facility larger in comparison to the neighboring branches would be a difficult balancing act in terms of budget and allocation of resources such as technology and programs such as literacy In order to accomplish such a compromise, we are recommending the use of .3 square feet per capita. To clarify how the figure should be used, the following are offered: • This figure is based on the build out projections for population of Tustin and North Tustin. • Actual square feet per capita will change with population growth every year, while facilities are constructed in large increments. • The entire population of North Tustin is included in this calculation, although at some point in the next 10 years, a facility of approximately 5,000 square feet will probably be built in the Peters Canyon area, and will attract some of the North Tustin residents to this small branch of the Orange County Library • Some staff work areas will still be required in new construction for circulation and programming activities related to the new facility This does not duplicate the administrative and technical support David M. Griffith & Associates Page 31 Location Est. Sv• Populatio Gros • Sq. Ft Facilit Typ Sq. Ft Per Capit. 1 Belvedere Tiburon 11,001 10,501 Main 0.95 NE Danville 62,001 17,001 Branc 0.2 NE Foster City 30,001 34,151 Branc i Lancaster 123,001 48,721 Branc 0.41 E Los Angeles 44,001 9,035 Branc 0.21 `Los Angeles 75,001 17,543 Branc 0.23 NE lommil Oakland 20,001 15,501 Branc 0.78 San Diego 21,001 13,101 Branc 0.6 a San Diego 50.001 12,48 Branc 0.25 Average 0.5. (1) Excludes two branch facilities of 2,400 sq. ft. or less and one main /system headquarters facility of approximately 143,000 sq. ft. Information is from Library Journal, December 1997 To set a standard for the space needed for the Tustin Library it will be necessary to compromise between the existing and generally accepted public Library standard, and the Orange County Library standard. To develop a facility larger in comparison to the neighboring branches would be a difficult balancing act in terms of budget and allocation of resources such as technology and programs such as literacy In order to accomplish such a compromise, we are recommending the use of .3 square feet per capita. To clarify how the figure should be used, the following are offered: • This figure is based on the build out projections for population of Tustin and North Tustin. • Actual square feet per capita will change with population growth every year, while facilities are constructed in large increments. • The entire population of North Tustin is included in this calculation, although at some point in the next 10 years, a facility of approximately 5,000 square feet will probably be built in the Peters Canyon area, and will attract some of the North Tustin residents to this small branch of the Orange County Library • Some staff work areas will still be required in new construction for circulation and programming activities related to the new facility This does not duplicate the administrative and technical support David M. Griffith & Associates Page 31 • • City of Tustin rary Needs Assessment & Facility Plan functions now housed in the Administrative headquarters of the Orange County Library Staff work areas are included in the calculation of the standard. • While the .3 figure represents gross square feet per capita, it should not include any commercial or partnership activities in the calculation. • This estimate of needed square feet is based on the Tustin Library remaining a branch of the County Library system; if however the City were to withdraw from the County Library system, additional space would be needed for the administrative, technology and support functions now performed at the County Library headquarters. Based on these statements, we are recommending that the Tustin Library space needs are .3 square feet per capita, or approximately 30,000 square feet. This means that the current facility of 15,000 square feet is inadequate to meet community needs, and additional space will be needed. (4 ) Facility Expansion Alternatives The current facility has an excellent location, according to the community participants. This location should be maintained if at all possible, as it is convenient to transportation corridors, schools and is centrally located in the City The alternatives for expanding the library services were developed based on the Library remaining in its current general location in the Civic Center. Alternative sites outside the Civic Center area were not considered. It should be noted that in evaluating facility expansion alternatives, it was assumed that the Tustin Library would continue to be a part of the Orange County Library System. The base level financial analysis in Chapter 3 indicates that the revenue the Tustin Library generates is not sufficient to cover the operating costs. Because of this, there is no financial incentive for the City to withdraw from the County Library and establish an independent municipal library There will be additional costs to operate a larger facility and this additional cost will be subject to negotiation between the City and County Library While the City may shoulder the cost of the expansion, there will still be an imbalance between revenues and expenses. Chapter 9 outlines the anticipated operating costs for an expanded facility Also not considered was the option to build an additional branch facility In this consultant's experience, branch libraries do not significantly reduce the volume of activity in the main or central library but result in duplication of materials, staff and costs. The City of Tustin does not occupy a land area sufficiently large enough to justify the expense of the duplication. Rather the expansion of the existing facility will allow depth of collections, concentration of staff and programming efforts, and efficiency of operation. The community participants were almost unanimous in their belief that an expanded central facility was preferable to an additional branch facility Therefore, this analysis considered only the expansion of the existing library David M. Griffith & Associates Page 32 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 • 11111 City of Tustin rary Needs Assessment & Facility Plan There are several ways to develop a library of 30,000 square feet in the current Civic Center location. They are: Alternative A Add a second story onto the existing facility Alternative B Add a wing onto the existing facility. a 15,000 square foot single story addition and remodel Alternative C Remove the existing facility and construct a new facility in the same place. A key factor in making the decision about which approach to take with facility expansion is the cost effectiveness of each alternative, both in terms of capital or construction costs, and in operating costs. In general terms, current library construction costs are approximately $325 per square foot, not including additional materials, possible temporary relocation of the library and some technology costs. The actual costs for such a facility depend on the additional services desired and any improvements or changes to the existing Civic Center required as a result of the library construction. In estimating costs at this preliminary stage, it is appropriate to establish a range and work to develop more accurate estimates as the configuration of the facility and its contents is developed. Preliminary estimates for each alternative are shown in the matrix below Inflation and the state of the economy at the time of soliciting construction bids could also affect these estimates. Not included in the estimates at this time are the costs for additional materials and technology upgrades. Estimated Costs for Library Expansion Alternatives Each of these options will need careful consideration and architectural evaluation before the most practical option can be finally selected. However following is a brief analysis of each of the options, with the considerations that must be taken into account. The next chapter provides background information about how public library facilities in California are financed, and what practical sources of funding are available to the City of Tustin. David M. Griffith & Associates Page 33 Alternative A Alternative B Alternative C Land Ace uisition $1,594,825 '.1,594,825 $2,998,650 Temporary Library Relocation 520,000 520,000 0 Construction 4,484,700 3,882,450 5,527,500 Fixtures, Furnishings, E. ui .ment 850,000 850,000 850,000 Design & Mana • ement 540,000 535,000 700,000 Total '.7,989,525 7,382,375 .10,076,150 Each of these options will need careful consideration and architectural evaluation before the most practical option can be finally selected. However following is a brief analysis of each of the options, with the considerations that must be taken into account. The next chapter provides background information about how public library facilities in California are financed, and what practical sources of funding are available to the City of Tustin. David M. Griffith & Associates Page 33 ff a8"d S'amhossV P 411k1,9 W Plnvp .su.I0 ,Clloe; mau alp 'pun uouRlado u! 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Supped •aaeds 8unlred ;o Su!'gnop E annbar Ipm ,Lmrg!Z ay18ulpuedxg Supped •lORdw! lueay!u8!s oN 'lagdw! lueolpu8ls oN •sanllewallR raylo aq1 u! papaau I0U are lgyl 51500 Deis pappe u! llnsar Aew sou, •saalnras pu11 suolloapoa s,drErgll ayl ;o a2u1r pn; zip smog 01 are suonEd ;! 'gawp Ilg 1e pa ; ;els aq Ism ,Llerq!l ay1 ;o sl:an: yloq rem sueaw.00p puoaas g Su!ppy 2U! J3nS lug : oa.: wppnq e w palelnalue spaau OOIAJOS pue ❑011031100 alp yam 01 pau2isap aq pinga 11 Imp s! Xppae; MOU 0 a8ElueApE ayd, 'aDWOS wiled l0 ;.auaq ! yoeoldde ,Goss auo 0(11'uoluppe u1 ,(ppae; mau alp al u! panm aq 01 Saawas X2olouyaal 111110; Mole IIIM Xp'Wu; MOU 11 Supork lsuoJ 'ow!) manna am re s! 11 UEy1 asn 01 .0■5110 XupoE; ay1 al[Ew moo Iopa1U! ayl 8uIIEnoaal pue Slum a SU!ppy )rmrgl' ay1 asn X041 se suonwd 15lss11 111M loop aUO UO SaOINas pug SIRLIa1ew SuidaaN •a'q!s!A Ssal 0.I1 Xay7 uaym suonaalloa 1111 pue s.00u gloq asn 01 waned lo; llnay ;lp s! 11 •alq!ssod Hu 1e ;! pone wogs sauErgg aggnd 8uppawos'sroop 0M1 uaamlaq saa!Nas pue suollaapoa alp Supulds sueaw ,(cols puoaas E Sulppy suoIOapoJ :g saawas •aoEld gums alp u! ,C1lpo!) mau a lannsuOJ aAREU.lally Iapowar pue uo!1lppe ,Clots a18uiS 100; alnnbs 000's I R ppy g and ;uuialjy 1!Ilomd 8ol1slxa all 01uo 4.101s puoaas 11 ppy v anleulaljy uolsuudxa £auagl'so! san9EUSajly aql 2ulpaw2ag suolluaaplsuo3 uvtd tQp /avg Ip luawsras-sV rpaaN tiva917 upsnj to ti!J MI MO NM O M M NM M • IMM MI MIIMM • • 8 FINANCING PUBLIC LIBRARY BUILDINGS • 41, City of Tustin rary Needs Assessment & Facility Plan 8 FINANCING PUBLIC LIBRARY BUILDINGS An essential component of planning for future Library facilities is the development of a strategy for funding the construction of new facilities. The construction of a library facility can be financed using funds secured from a variety of entities including local, state, federal or private sources. The challenge facing the City of Tustin is the development and implementation of a financing strategy which will allow for construction of a new facility as well as the additional incremental operating cost such a facility would require. It is our opinion that the City of Tustin has only two basic options for financing the cost of future library facilities. The first option is 'pay as you go meaning the use of cash from either City sources or external sources which is used to pay for facility design and construction costs as the project proceeds. The second option is to use some form of debt financing to borrow the funds required to pay for design and construction costs, with repayment of the debt from City resources over time. The City of Tustin is interested in identifying alternative funding sources which might be available to support the construction and operation of the proposed future facility The sections of this report which follow provide background regarding trends in funding the cost of public library facility construction and information about current funding source options. (1 ) Local Government Funds Have Provided The Vast Majority Of Funding For Public Library Construction In The United States During The Last Thirty Years. Since the late 1960's, local government sources have provided most of the funds spent on the construction of public library facilities in the United States. According to a recent text titled Financing Public Library Buildings by Richard B Hall (the current Bond Act Manager for the California State Library), local sources accounted for seventy -eight percent (78 %) of the total amount spent on construction of public library facilities in the U.S between the late 1980's and the early 1990's. The table which follows provides data on funding sources used to support the construction of new library buildings in the United States since the early 1990's. As the data indicate, local funds have continued to be the largest source of support for the construction of new library facilities: David M. Griffith & Associates Page 35 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 • 411 City of Tustin rary Needs Assessment & Facility Plan New U.S. Public Library Buildings Construction Funding By Source FY 91 -92 to FY 96 -97 in millions Period Funds Ex•ended B Source Total Federal State Local Gift FY 92 9.8 10.7 230.8 16.4 267.7 FY 93 4.3 26.3 208.2 28.8 267.6 FY 94 4.4 45.5 203.6 17.6 271.1 FY 95 10.5 31.0. 268.6 25.4 304.5 FY 96 17.7 32.0 301.9 57.4 409.0 FY 97 4.5 73.0 228.7 31.1 337.3 Total of Total 51 2 2.8% 187 5 10.1% 1 441 8 77.6% 176 7 9.5% 1 857 2 100.0% Source: Library Journal (December 1997). Financial support for the construction of new library building projects completed in California during FY 96 -97 were reported in the December 1997 issue of Library Journal as follows: • Federal funds - .5% • State funds 17% • Local funds - 74% • Gift funds - 8% The data for California indicate that funding trends for the construction of new library buildings in California are consistent with national trends. In light of the state and national trends, it would appear that the City of Tustin should expect the vast majority of support for the construction of future public library facilities to come from local sources. Local funds are derived from several sources. Among the sources available to municipal governments today are the development of a benefit assessment district, the general obligation bond and Redevelopment Agency funds. • A benefit assessment district is one financing tool that enables local governments to charge a levy on real property benefiting from a public project. For a benefit assessment to be legal, it must provide a direct or special benefit to the property above and beyond the general benefits received throughout the area. Because the assessment is to be levied on the amount of benefit received, it is not considered a tax. David M. Griffith & Associates Page 36 • City of Tustin rary Needs Assessment & Facility Plan • General Obligation Bonds represent the City's commitment to repay borrowed funds. It is paid back form the total City revenue base. It is general, rather than specifically dependent on revenues from one department or service area. General Obligation Bonds differ from the formation of a benefit assessment district in that specific direct or special benefit is not quantified, and the repayment is based on the general revenues of the City • Since 1996, Redevelopment Agency funds have been programmed for improvements in the vicinity of the existing Library site which is located in the Town Center Redevelopment Project Area. According to City staff, the Agency now needs to focus on economic development projects that generate new tax- increment projects rather than using RDA funds for major public improvements in the Town Center Project Area. However some savings from a recent Town Center refinancing may be available for reprogramming in an amount not to exceed $I 4 million dollars, or approximately $86,000 per year to the year 2016. A key consideration will be the issue of benefit when the Tustin Library serves an area larger than the Town Center Project Area and even extends beyond the City's jurisdictional boundaries to the North Tustin sphere of influence. (2.) Recent "Take- Backs" Of Local Revenues By The State Have Severely Strained Local Jurisdictions' Budgets. Special Or New Revenues Will Probably Be Needed By Tustin To Fund The Construction of New Library Facilities In The Near Future The likelihood that a significant proportion of future library facility construction projects funding will have to come from local sources presents a substantial challenge for local jurisdictions in California. California cities and Counties have experienced severe financial constraints during the 1990's as a result of the State's recession and State `take - backs' of property tax and other locally- generated revenues. If local sources are in fact needed to make a significant contribution to the financing of future library construction programs, it is likely that these local sources will have to be generated by either special or new revenues. Appendix D of this study provides our analysis of the City's option to use a parcel tax, a potential new local revenue source, to provide both capital and operating costs for a new or expanded facility Although grants for the construction of library facilities are significantly more limited than in the past, the County Library has received some grant money for library facilities, and may receive such grants in the future. Clearly grants are not a reliable source of funding and the City is well- advised not to depend on them to support its basic library capital needs. However the potential for grants could play into the service level issue discussed above. For example, if the City and/or County should decide that its funding should be based on the threshold David M. Griffith & Associates Page 37 • City of Tustin rary Needs Assessment & Facility Plan population ratio of 0.5 square feet per capita instead of the recommended 0.3 square feet per capita, it might pursue grants to enhance the service level in an effort to achieve the higher level. (3 ) Legislation To Create State Bond Financing To Support The Construction Of Public Library Facilities Has Recently Been Introduced In The California Legislature. To Take Effect, This Measure Must Be Anproved By The Legislature, Governor And Then By The Statewide Electorate. The California State Library administers state funds appropriated to support the construction of public library facilities. Although there is no state funding currently available to support the construction of public library facilities, legislation recently introduced to create a new state funding source was not adopted. The California Library Construction and Renovation Bond Act of 1998 (SB 2026), sponsored by the California Library Association and introduced by Senators Rainey and Burton, was proposed to create $500,000,000 in state bond funding. It will be reintroduced during the next legislative session, and has a stronger chance of passage, since it will not be competing with school bond bills. The Library legislation was designed to support library facility projects including: • acquisition or construction of new public library facilities, • additions to existing public library facilities; • remodeling or rehabilitation of existing public library facilities; • purchase and/or installation of library furnishings and equipment as part of a funded construction or remodeling project. The Bond Act would have been used to fund 65% of the total costs of individual projects ranging from a minimum of $100,000 to $20,000,000. Grant recipients would be required to provide matching funds of 35% from any available source. Land donated or otherwise acquired to provide the site for the facility as well as architectural fees for plans and drawings may serve as credit toward the 35% match requirement. The bill provides for project funding criteria which includes consideration of all of the following: • needs of urban and rural areas; • population growth; • age and condition of existing library facility. • degree to which the existing library facility is inadequate in meeting the needs of the residents in the library service area and the degree to which the proposed project responds to the needs of those residents; David M. Griffith & Associates Page 38 • 0 City of Tustin rary Needs Assessment & Facility Plan • the degree to which the library's plan of service integrates appropriate electronic technologies into the proposed project; the degree to which the proposed site enhances utilization of the proposed project by the residents in the library service area. To be placed on a statewide ballot for voter approval, SB 2026 must be approved by both houses of the State Legislature and signed by the Governor As a statewide referendum, the measure requires approval by a simple majority (51 %) of voters to become law It should be noted that 1998 is the second year of the State Legislature s two -year session. As such, bills that are not approved by the Legislature expire at the end of the session and have to be re- introduced during the next session. We are advised by the California Library Association Legislative Coordinator that SB 2026 will be reintroduced at the earliest opportunity during the next legislative session. Given that the California Library Construction and Renovation Bond Act of 1998 was just defeated, it is unclear what modifications will be made to the bill for re- introduction, as well as its chances of successfully moving through the next legislative process, including signature by the Governor There have been at least three similar pieces of legislation introduced in the State Legislature since 1994 None of the prior three bills were approved by both houses of the Legislature; as such, none reached either the Governor or the electorate for approval. It should be noted that the authors of SB 2026 are composed of a bi- partisan team; in addition, one of the authors, Senator Burton, holds a powerful legislative position as the current Senate Speaker Pro Tem; these sponsors will likely continue their sponsorship of the re- introduced legislation. In addition, the State s general economic circumstances are vastly improved over that of the mid -1990 recession years when the earlier bills were introduced. Some or all of these factors could help the course of this bill; however it is impossible to predict the ultimate outcome. Finally considering that the construction of so many public library facilities in the State has been delayed or deferred in the recent past, competition for State bond funds, should they become a reality will be intense. Only those projects that have nearly completed plans and complete funding packages will be competitive. (4 ) Federal Sources Do Not Appear To Offer Any Substantive Funding Alternatives At This Time. Historically the most important source of federal funds for public library facilities has been the Library Services and Construction Act (LSCA) Title II. The original legislation was signed into law by President Johnson in 1964 The purpose of the LSCA was to promote the extension of public libraries and to provide for the construction of new public library buildings or the improvement of existing buildings. This federal program has had three major phases since its inception. During the thirty -three years since the inception of the program, a total of $341 million has been appropriated by the federal government. The LSCA Title 11 funds were administered through a competitive process by the California State Library David M. Griffith & Associates Page 39 • City of Tustin ary Needs Assessment & Facility Plan Appropriations for the program have decreased considerably in recent years. The California State Library is currently administering one LSCA Title II program for which $1.3 million was appropriated for the entire state of California. Grant awards which are currently under review, will be made for a maximum of $650,000 per project. The reauthorization of LSCA became the Library Services and Technology Act (replacing the word construction with technology). It is unclear whether there will be future appropriations by Congress for library construction. However unless future appropriations are considerably larger, the magnitude of California s current appropriation suggests that this source would not make a significant contribution toward Tustin s facility funding needs. In addition, due to the competitive nature of the grant award process, LSCA funds would not appear to be a viable alternative funding source. There are a few other federal funding sources which may be accessed to support or contribute toward the support of public library facilities. These sources, however generally are targeted for specified types of communities or purposes as opposed to more general library development purposes. These special- purpose funding programs do not appear to be applicable to Tustin s situation. Examples of these special- purpose federal funding sources include: • Community Development Block Grant (CDBG) program which targets efforts that: (1) benefit low and moderate income persons, (2) eliminates or prevents slums and blight or (3) meets other urgent community development needs because of a threat to the health and welfare of the community The City of Tustin receives approximately $750,000 million annually in CDBG funds which are allocated through a competitive process to projects proposed by the City or community based agencies. Low to moderate income neighborhoods are defined as those in which the majority of resident households (51% or more) are below 80% of the regional median income level for a family of four In Tustin, this requirement means that a project supported by CDBG funds the needs to primarily benefit individuals whose household income is $40,650 or less. • National Endowment for the Humanities Challenge Grant Program provides funds to assist nonprofit institutions in developing new sources of long -term support for educational, scholarly preservation and public programs in the humanities. This program has a special initiative to assist public libraries in creating endowments that support the humanities. This program is however quite small, offering grants up to a maximum of $150,000. • National Park Service Historic Preservation Grants -in -Aid Program provides funds to local jurisdictions for the acquisition, preservation or development of properties listed in the National Register of Historic Places. This source obviously is not useful for construction of new facilities. David M. Griffith & Associates Page 40 • City of Tustin rary Needs Assessment & Facility Plan (5 ) Private Fundraising Campaigns Have Historically Raised Limited Amounts. Despite Recent Success Experienced B y Some California Communities. This Approach Does Not Appear To Be Appropriate For Tustin's Circumstances. In recent years, a few California communities and some communities in other parts of the United States have launched successful campaigns to raise funds from private donors to either fund or supplement other funding for library facility construction projects. According to Financing Public Library Buildings, there have been numerous single- benefactor gifts of sites and even entire buildings; however this text suggests that there have not been many well - organized private funding campaigns for library facilities in the U.S. Based on a review of private capital campaign data published in Library Journal, only forty campaigns raised $1 million or more in a twenty -four year period. Of the forty campaigns, two campaigns raised substantive sums (Richmond, TX $8.0 million and Dallas, TX $11 million); the remaining thirty -eight campaigns raised from $1.0 to $4.2 million dollars. The project team is aware of a few Northern California communities that have implemented successful capital campaigns for local public library facilities in recent years. These communities drew in large measure, upon local donors including private individuals, community groups and industry within the jurisdiction. With adequate planning, resources and professional direction, a capital campaign could potentially provide a portion of the capital needed for a new library facility particularly in a community which possesses private individuals and industry willing to make substantive donations. It is likely that, to be successful, such an approach would require some type of public - private partnership in recognition that a public library is accessible to all citizens and, as such, significant support would still need to be provided from public resources. It would not seem likely that this approach would provide adequate funds for completing the project. David M. Griffith & Associates Page 41 • • 9 OPERATING COSTS FOR AN EXPANDED FACILITY • 0 City of Tustin rary Needs Assessment & Facility Plan 9 OPERATING COSTS FOR AN EXPANDED FACILITY An expansion of the Tustin Library to 30,000 square feet represents a doubling of the existing space. Depending on the altemative method of expansion selected, the operating costs will vary with Alternative A (add a second story onto the existing facility) being the most expensive in terms of staff and some duplication of materials. In this chapter we will explore the basic components of library branch operating costs and make some estimates that will be useful for planning purposes. It is important to remember that the estimates provided here are made before the Library's building program and design are developed, and that some ideas and suggestions incorporated during those stages may impact operating costs. More precise estimates of operating costs can be developed as the building is further developed. The purpose of the information included in this chapter is to provide assistance in planning for the expanded library In developing this estimate, we decided to continue the Library's current designation as a Branch Library even though the proposed size (30,000 square feet) will make it one of the largest branches in the Orange County Library system. There are currently three branches designated as regional libraries in the system. These libraries have larger collections and staffs than the branch libraries. The regional libraries receive an additional funding amount before branch formulas are applied during the budget process. The Library Advisory Board and the Board of Supervisors would be responsible for changing the designation of the Tustin Branch. At the current time, the neighboring Heritage Park Library is Irvine is designated a Regional Library Salaries and Benefits. This category contains the costs for providing staff to operate the Library Salaries are based on the current salaries and classifications used in the Orange County Library System. Estimates are based on the top step of salaries, so there may be some savings when the budget is applied to current staff incumbents. Approximately 16 FTE will be required to operate an expanded facility at the current level of service. This is approximately 25% more staff than currently work in the branch, and these positions are needed to handle the increased amount of public service that will result from the expansion. The community involvement phase of this study showed that a significant number of people are currently choosing not to use the Tustin Library due to limitations of the collection; presumably when the expansion is complete and additional materials are included in the collection, these patrons will return to the Tustin Library resulting in the need for additional staff. Typically libraries experience great increases in usage when renovation or expansion projects are undertaken. This increase in use should be anticipated and included in any operating plan. The table following shows the current and proposed staffing levels for an expanded facility David M. Griffith & Associates Page 42 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 • City of Tustin rary Needs Assessment & Facility Plan Tustin Library Proposed Staffing For Expanded Facility Position FTE Current FTE Pro.osed Function Sr. Administrative Librarian 1.00 1.00 Branch Manaaer Librar S•ecialists 2.00 3.00 Reference & Children s Librarians Librar Assistants 2.50 3.00 Reference & Children's Services Office Su.ervisor 1.00 1.00 Circulation/Clerical Su Iervision Libr Clerk 3.50 4.00 Circulation Services Pages 2.00 4.00 Circulation Services, Shelvin • Total 12.00 16.00 With an expansion such as this one, there are opportunities to improve efficiency through the acquisition of new technologies, and thereby keep the increase in the number of staff lower For example, the self -check machines that provide self- service check -out of library materials can reduce the staffing needs for circulation. These kinds of cost - effective applications of technology should be incorporated into a building program and design. The capital cost of the equipment will rapidly be offset by reduced operating costs over time. Facility Operations. This category of operating cost includes building supplies, maintenance, and utilities necessary to keep the building operational. There should be some efficiencies in utilities as new energy - efficient systems are installed. Similarly, there should be some savings in maintenance costs due to efficient design of an expanded or new facility Supplies for cleaning and maintenance can be expected to increase in proportion to the actual number of people using the facility Office Supplies. These are the actual supplies used by library staff and patrons at the Tustin Library Like the cost of maintenance and cleaning supplies, the costs for this category can be expected to increase also in relation to the number of people who use the facility Library Materials. Library materials will be significantly increased in an expanded facility because there will be more space available to shelve and display materials. Currently the branch is hampered by a lack of available shelving, and could not absorb a major increase in its materials allocation. However, the increased space should allow for the purchase of new materials and the opportunity to build some depth in selected subject areas. One part of the Library's construction budget should be a significant collection development allocation, so that the library has a collection appropriate for a 30,000 square foot facility when it opens. At the same time, it will take several years to fully complete the collection and use the space available for materials shelving. Equipment Maintenance. The community involvement phase of this study showed a need for more equipment and increased availability of technology related services. Therefore, a doubling of the maintenance costs for this equipment is proposed. David M. Griffith & Associates Page 43 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 • 9 City of Tustin rary Needs Assessment & Facility Plan System -Wide Services. These services are provided from the Orange County Library Headquarters to all member libraries. Services included are general administrative services such as accounting and human resources; technology systems and services; library materials acquisitions, cataloging and processing; delivery services; community and public relations; county -wide overhead costs. These costs for System - Wide Services are approved annually by the Library Advisory Board and are assigned to all facilities in the system. Below is a chart illustrating the proposed costs for an expanded or new library facility Current facility costs are shown for comparison purposes. OPERATING COSTS FOR 30,000 SQUARE FOOT FACILITY Category Current Facility New 30,000 Square Foot Facility Salaries & Benefits 376,843 500,000 Facili O. - rations 44,215 60,000 Office Su. .lies 5,265 10,000 Libr Materials 154,000 300,000 E. ui.ment Maint. 2,354 5,000 Subtotal 583,777 875,000 S stem - Wide Services 385,742 577,500 Total 969,519 1,452,500 David M. Griffith & Associates Page 44 • • 10 AN ACTION PLAN FOR DEVELOPING TUSTIN LIBRARY SERVICES • • 10 AN ACTION PLAN FOR DEVELOPING TUSTIN LIBRARY SERVICES There is ample need for improving library services in Tustin. This study has shown that the current facility is inadequate in a number of significant ways, and addition of space (whether by addition or creation of a new facility) is called for by any standard in use today The City of Tustin has shown great interest in improving library services for its community and an intention to work collaboratively with the County Library in order to accomplish this goal. The community participation phase of this study showed a community knowledgeable about the existing services and about the limitations of the current facility The young adults in particular, were very skillful in finding the public library that was most likely to meet their school work needs, and the Tustin Library was not among their top choices. It seems that there is a significant level of community awareness of the need for improved library services. Identifying funding for construction and operating costs are major issues that the City will soon need to address. This study has covered some of the available options, and indicated the likelihood of obtaining funding from some sources. It will be important for the community to advocate for passage of a State Bond Act for public library construction, if there is any hope that state funding may contribute to the funding mix for this project. The following section outlines the steps in the process of expanding the library facility assuming the need for a special election to obtain voter approval for a funding or bonding action. The time frames included here are approximate; however, there are several fixed dates relative to holding a special election in March, 1999 If the City chooses not to go to the voters to obtain funding, then the project can move ahead much more quickly Constructing a new facility or expanding an existing one is a complex task that will involve the efforts of many groups and organizations. There are several key participants in the development of a design for a new facility. • The community of users • The community of non -users • The City staff • The Library staff • Volunteers and Friends of the Library • Physical plant and maintenance staff • The architectural firm, including engineers and interior design personnel These people will form the base from which the building design and plan is generated. If voter approval is necessary then a campaign organization will be needed, with the ability to raise and expend funds in order to generate support for the measure. If there is to be a significant effort to raise private funds, then another group will need to be created. This could be a foundation which might continue to provide additional David M. Griffith & Associates Page 45 • • City of Tustin ary Needs Assessment & Facility Plan support even after the completion of the expanded facility Chapter 8 of this study covers this option briefly There are a number of good publications (available at the Library) about fund raising. If it is desirable to raise funds only for the construction project, then a professional fund raiser may be added to the team of people helping plan the facility Many jurisdictions employ a library building consultant to write the building program and advise the architect in the design stages of a library project. The Orange County Library staff are experienced in building programming and could serve this function, reducing the need for additional consulting services. The recent Aliso Viejo Library is an example of the work done by the Orange County Library staff. Following in a brief outline of the next steps in the process of expanding and improving library services in Tustin. Next Steps In Expanding Tustin Library Services Date Oct. — Feb. `99 Feb. 15 1999 March 11 1999 March 22, 1999 March — July `99 March — June `99 June 8, 1999 July — Sept. '99 Sept. — Feb. 2000 Feb. — May 2000 May — June 2000 August 2000 Summer, 2001 Activity Develop financial plan; poll voters City Council adopts resolution for election Official request to call for a special election. Impartial analysis and arguments due to County election officials Last date to submit rebuttals Development of library building program Campaign for passage of library parcel tax Special election for parcel tax Selection of architect Design development Plan review Bids for construction Construction begins New Library opens David M. Griffith & Associates Page 46 • • APPENDIX A LIBRARY PROFILE DATA in I — — 1 — — — M — i _ — — — NM City of Tustin Library Needs Assessment and Facility Plan Appendix A Tustin Branch Library Overview of Service Hours Sunday Monday 1 I • Tuesday I Wednesday I` " Thursday ( ' Friday I` ., _ Saturday • 9 A.M. 1 0 1 1 12 P.M. 1 2 3 4 5 6 7 8 9 P.M. Source: Orange County Public Library System David M. 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How do you use the Library? • For research; books usually have to be obtained from other branches; need more solid research materials • Research materials are not here. Only one Internet computer • I bring my children to the Library • My children find books they like to read, and go to story hours. 2. What would you like to have in the Library of the future? • How do we know what we need with dramatically advancing technology Things are moving so fast, how do we project future needs and how do we keep up? • Problem with hours of Library 9 p.m. closing is too early a 10 or 11 p.m. closing time would be a better time frame for teenagers doing homework. • Library should be open on Sundays (perhaps not a full day) • Research materials for art; not enough materials in depth. • Need a change machine • There are only a few volumes available for students to do assigned special projects -- materials on reserve. • There is a space problem with being able to accommodate more books - -the Library is not large enough • The checkout limit of 2 books per subject is constraining. • Staff very helpful, but constrained by lack of resources. • The children s librarian is very helpful but how often are they available? Would like to see someone at the Children s Desk all open hours. • Story hour space is needed • How does our Library compare with others? • School more connected to the Library with class visits • Need closer coordination between schools and Library • Should Library and the school libraries work together? Their computers could tie into the Library In addition, other opportunities for computer system networking include: — The Senior Center — The Family Youth Center — Access from home — The Boys and Girls Club • With growth/demographics of Tustin, there is a need for a larger Library with space for separate departments. For example: David M. Griffith & Associates Page C 7 • City of Tustin Library Nee sessment and Facility Plan Appendix C — Youth — Children — Adults — Research — Quiet Study — Meeting Rooms — Training Areas/Labs • Use of mobile units to go out to the community Loved bookmobiles. • Lots of reading rooms/ areas around departments. Need to make reading areas inviting with gardens, features like Barnes & Noble • The Library's the Place to Be!' 3 How should the Library be expanded? • Better air conditioning • Better lighting • A complex/quad area with indoor & outdoor experiences, and wings, places to go inside the Library • A relaxing place • A haven • Library instead of a shopping mall • Program, book reviews, things to pique reader's interest • Teens want a place to meet others • All want a place to meet • Coffee cart/snack area • Musical series • Listening area • Theaters, art galleries (improve atmosphere of Library) • Community rooms • Great books discussion groups (for a maximum of 25) • Living Library • Community discussion/debate • Community forums • Library functions as town square • A really neat children s hour area that is whimsical and full of fantasy; inspirational, and in a Location so adult activities are not interrupted. 4. What should the Library look like? • More homey • Have indoor /outdoor spaces • Access to the outside more immediate • Kids size entrance or special portal David M. Griffith & Associates Page C -8 • City of Tustin Library Nee sessment and Facility Plan Appendix C • Need to appeal to the new parts of Tustin (Tustin Ranch) and to Old Town • Windows and light • Traditional mix of modern with warmth of familiar • Fireplace • Have study tables in stack areas • A possible central area or wheel radiating out to other wings in the Library (a road or a hub with spokes of a wheel was the image represented.) • Reading lofts for kids • Friends Bookstore needs to be larger and it needs a storage area; perhaps even better location. • Need a drop off area • Book return drive - through • Need service areas and basic amenities • Ideally the Library should be part of larger complex, but practical dollar commitments may present a problem. — Sometimes the improvement of a facility can create synergy and partnerships that will enhance and support the Library — Developing a larger complex (with performing arts, theater, cultural center, art gallery) could generate congestion and gridlock in the area. — The Library's key location criteria are: central area with easy access and high visibility hard to do in a complex. — The Civic Center complex is already present and an opportunity to maximize current facilities would be most cost effective. — Focus should be meeting community Library needs, not on gigantic complex. — The Library itself can accommodate lots of these functions on an individual basis. 5 Is the Library in the right place? • Parking is a problem • Parking full when there are other events at City Hall- -need adequate parking • Needs to be near or closer to schools • Architecture and orientation could make it effective in its current location • It is in a good spot. • Could re -orient the entrance. Put it facing Main Street David M. Griffith & Associates Page C -9 • • APPENDIX D ANALYSIS OF AN APPROACH FOR FINANCING LIBRARY DEVELOPMENT • City of Tustin Library Needs A ment and Facility Plan Appendix D ANALYSIS OF AN APPROACH FOR FINANCING LIBRARY DEVELOPMENT This Appendix presents our evaluation related to financing the development of a new or remodeled library in Tustin. The chapter opens with description of the key assumptions employed to develop a potential financing plan. 1 OUR ANALYSIS INDICATES THAT ADDITIONAL REVENUES WILL NEED TO BE GENERATED TO FUND BOTH CAPITAL AND OPERATING COSTS ASSOCIATED WITH A NEW OR REMODELED AND EXPANDED LIBRARY IN TUSTIN. As shown earlier in this report, projected costs associated with either building a new library or remodeling and expanding the existing library are projected to be as follows: • • • Construction and planning costs estimates for a range of scenarios which included construction of a new facility and several altematives for expanding and remodeling the existing facility These costs ranged from $ 7.382 million to $ 10.076 million. In addition, it is projected that the new facility would also require a one -time expenditure of $ 500,000 for collection enhancement. When collection enhancement is included, total project costs would total from $ 7.9 million to $ 10.6 million depending on the library improvement and expansion scenario selected. Based on interviews conducted during the course of the project, it has been assumed that there is little upfront capital available to apply to the project costs listed above. Key issues are as follows: • The Orange County Public Library has no reserves to fund construction. • • The City's capability to contribute upfront capital to offset project costs are limited to: A one time contribution of $ 300,000 from the City's capital fund. The potential to allocate a total of $ 1 4 million from the City's redevelopment tax increment. These funds would received over the period through 2011 While there is the possibility of obtaining State Library Construction Funds if the proposed State of California bond issue for library construction passes, it has been assumed for the purposes of this analysis, that this David M. Griffith & Associates Page D 1 • City of Tustin Library Needs A ment and Facility Plan Appendix D source is uncertain in regard to probability or potential amount and should not be considered in the financing analysis. • Development Impact Fees provide little practical opportunity to offset a significant proportion of project cost since: The OCPL s standard of .2 square feet of library space per capita standard makes it impossible to allocate any significant portion of library development costs to the only area with significant new development -- the Marine Corps Air Station Property (MCAS). As a result of previous agreements, development impact fees cannot be levied on remaining development at Tustin Ranch. With the exception of these two areas, future development in either Tustin or the North Tustin unincorporated area will be minimal. While interviews have indicated that the OCPL has no resources available to fund capital expansion, it should be noted that $ 500,000 of the total project cost includes a one- time expenditure to fund expansion of the collection to provide a larger collection consistent with the larger facility and the expected increase in use of that facility Since the Tustin library is part of the larger OCPL system, this expanded collection will benefit the entire library system. Since the City will contribute an estimated $ 300,000 to support capital development, it would seem reasonable that the OCPL can make an up -front contribution to fund at least a portion of the collection expansion since this expanded resource will benefit the entire system. As a result, as planning for the project proceeds, we strongly recommend that the OCPL share in the cost of the project by supporting a portion of the collection enhancement costs at least equivalent to the City's contribution of $ 300,000 Since a commitment at this level is uncertain at this time, the analysis which follows focused on financing capital costs will assume that the full collection enhancement costs will need to be incorporated into total project financing. To the extent that the OCPL contributes resources as recommended, capital cost financing requirements would be reduced. In addition to the capital cost financing issues noted above, there are also issues associated with operating costs which will be incurred when a new or remodeled and expanded library is in full operation. Operating costs will increase as additional resources will be required to support the staff, collection replacement, and direct operating costs, and Orange County Public Library David M. Griffith & Associates Page D 2 1 1 1 1 1 1 1 1 • City of Tustin Library Needs ment and Facility Plan Appendix D (OCPL) support costs required to operate the larger library Costs for operating the library were determined based on the analysis provided earlier in the report. Based on information provided by the Orange County Public Library annual costs for operating the new 30,000 square foot facility would total about $ 1 45 million as shown in the table which follows: Cost Com •onent Amount Salaries Sr Benefits $ 500,000 Facility Operations 60,000 Office Su. 'lies 10,000 Libra Materials 300,000 El ui . ment Maintenance 5,000 Subtotal $ 875,000 S stem Wide Services $ 577,500 Annual Total $1,452,500 To test differences between costs and revenues available to support a new and 1 expanded library we have employed an approach which compares revenues generated in the library's service area with the cost of services provided. This is consistent with the 1 1 1 1 1 1 1 1 1 1 resource allocation approach toward which the OCPL is moving. Since the Tustin library serves an area larger than the incorporated area of Tustin, the analysis has included the North Tustin unincorporated area which is clearly part of the libraries service area. Our analysis included projecting revenues available to support the library over a planning period through the year 2020, and employed the year 2000 as the base year when the new library would be in operation and operating costs would increase. All projections of revenue associated with the North Tustin area are limited to that portion of the North Tustin unincorporated area which falls within the City of Tustin s Sphere of Influence. This is because available data on assessed valuation and future growth available to support the analysis were Limited to that area. To the extent that portion of the North Tustin unincorporated area which falls within the City of Orange s sphere of influence would be added to the service area, revenues could be expected to increase modestly Revenues were evaluated and projected as follows: • Revenues related to library operations in Tustin and the Tustin -- North Tustin Service area (again, limited to that portion of North Tustin included within the City of Tustin s sphere of influence) were then projected by five year increment for the planning period through 2015 The following assumptions were employed to project revenues: Library related property taxes for Tustin, including the MCAS were projected based on current assessed valuation (1997 1998 base) David M. Griffith & Associates Page D 3 • City of Tustin Library Needs A ment and Facility Plan Appendix D plus new development as projected for the City and the MCAS property over the planning period. The MCAS library related property taxes reflect the residual amount after the Redevelopment Tax Increment and Housing Set Aside were excepted. The library related property tax rate of .018 was applied to the 25 % of the tax increment which is shared with other agencies to project revenues available to support library services from the MCAS area. The same approach was employed to project library related property taxes for North Tustin (area as previously defined) with the exception that a library relayed property tax rate of .017 (average tax rate for the Orange County Public Library service area) was used for projection purposes. All property taxes were projected in current dollars with no provision for reassessment due to turnover or the 2 % annual increase for property which does not turnover as allowed by Proposition 13 Since all cost projections do not consider inflation, it was felt the analysis would be more representative of comparative costs and revenues if revenues were projected without turnover or the 2 % annual increase assumption. State public library funds related to the Tustin Library were projected based on current and projected population growth for the Tustin North Tustin service area at the current rate of $ .58 per capita. It was assumed that fine and fee revenue would increase with a larger library but that rate of increase would be 50 % compared to the 100 % increase in library size. Other revenue was projected to remain constant. We assumed that there would be no City General Fund contribution to operations over the course of the planning period. • Costs were then compared to projected revenues, by five year increment, and annual operating deficits which would need to be covered by an alternative revenue source determined. Based on these assumptions, costs, revenues, and projected annual operating deficits related to the Tustin Library's service area would be as projected by five year increment for the planning period through 2020 as shown in the table which follows on the next page. David M. Griffith & Associates Page D -4 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 • City of Tustin Library Needs A • ment and Facility Plan Appendix D * North Tustin area included within the City of Tustin s sphere of influence As can be seen from review of the information presented in the exhibit, projections indicate that there will be a revenue shortfall throughout the planning period when projected revenues are compared to the costs of operating the larger Tustin library The analysis contained in this section that additional revenues will be required to fund capital and operating costs associated with a new or substantially remodeled and expanded Tustin library The next section addresses how this cost revenue gap could be closed. David M. Griffith & Associates Page D 5 Projected Revenues Dollars 000) Type Revenue 2000 2005 2010 2015 2020 Property Tax 1.r Tustin $601 $606 $609 $609 $611 MCAS 4 9 16 24 27 North Tustin * 195 196 199 199 199 Sub -Total Property Tax $ 800 $ 811 $ 824 $ 832 $ 837 Fines/Fees 80 80 80 80 80 PLF 54 54 54 54 54 Other 16 16 16 16 16 Revenue Total $ 950 $ 961 $ 974 $ 982 $ 987 Operating Cost $ 1,453 $ 1,453 $ 1,453 $ 1,453 $ 1,453 Net Annual Operating Deficit ($ 503) ($ 492) ($479) ($ 471) .. * North Tustin area included within the City of Tustin s sphere of influence As can be seen from review of the information presented in the exhibit, projections indicate that there will be a revenue shortfall throughout the planning period when projected revenues are compared to the costs of operating the larger Tustin library The analysis contained in this section that additional revenues will be required to fund capital and operating costs associated with a new or substantially remodeled and expanded Tustin library The next section addresses how this cost revenue gap could be closed. David M. Griffith & Associates Page D 5 • City of Tustin Library Needs A ent and Facility Plan Appendix D 2 OUR ANALYSIS INDICATES THAT A PER HOUSEHOLD ASSESSMENT WILL NEED TO BE APPROVED TO FUND BOTH CAPITAL AND OPERATING CO TS ASSOCIATED WITH A NEW LIBRARY Additional resources will be required to fund both capital and operating costs associated with the new Library given the assumptions outlined in the first section. Based on our analysis, these resources will need to include the following: In the absence of significant upfront capital to fund construction development costs, funds will need to borrowed to pay for construction if that construction is initiated in the near future. Since projected continuing revenues fall short of projected operating costs for a new library additional revenues will be required to pay principal and debt service costs if funds are borrowed to support development and construction of the new library Concurrently once the library is open, additional resources will be required to fund operations, and those resources will need to be generated on a continuing basis from a new revenue source. As a result, at this time it has been assumed that a parcel tax/per household assessment may be required to cover unfunded capital and operating costs and that parcel tax will need to be approved by a two- thirds vote. The remainder of this chapter describes the approach employed to estimate the per household assessments required to generate the additional revenues required to close the cost - revenue gaps associated with library facility development and operations as described above. All costs and revenues are presented in terms of current dollars with no provision for cost inflation or revenue increases resulting from reassessment of existing property upon turnover or the 2 % assessed valuation increase for existing property allowed under Proposition 13 In estimating the level of per household assessment necessary we considered two options: • The per household assessment would be limited to incorporated Tustin. • The per household assessment would be levied across the library's full service area including both the City and the North Tustin unincorporated area. Again, because of data limitations, projections related to the North Tustin area are limited to that portion which falls within the City of Tustin s sphere of influence. To the extent that the full North Tustin area would be included, the number of households covered by the assessment would increase and as a result, the required assessment might be marginally lower than projected in this report. David M. Griffith & Associates Page D -6 1 1 1 1 1 1 1 1 1 • City of Tustin Library Needs a ent and Facility Plan Appendix D Participating Area High Range Capital Costs Low Range Capital Costs Tustin Only $ 34 4 $ 24 Capital O.eratin $ 23 $ 23 Total Annual Per Unit Assessment $ 57 $ 47 Tustin and North Tustin s Capital $ 24 $ 17 O. ratin $ 17 $ 23 Total Annual Per Unit Assessment $ 41 $ 40 3 A PER HOUSEHOLD ASSESSMENT OF ABOUT $ 47 ANNUALLY WOULD BE REOUIRED TO SUPPORT CONSTRUCTION AND OPERATION OF A NEW LIBRARY IF THE ASSESSMENT WERE LIMITED TO THE CITY OF TUSTIN, BUT WOULD DECREASE TO $ 40 PER HOUSEHOLD ANNUALLY IF THAT ASSESSMENT INCLUDED BOTH THE CITY AND THE NORTH TUSTIN AREA. 1 This section describes how the per household assessment necessary to generate the additional required revenues was estimated. 1 1 1 1 1 1 1 1 1 (1 ) First. the Amount Needed to Fund Construction /Capital Costs Was Determined. In the absence of significant upfront capital to fund construction development costs, it was assumed that funds would need to borrowed to pay for construction. The following sub - paragraphs illustrate projected costs associated with this approach. For the purposes of this analysis, it was assumed that construction would be initiated around the year 2000 and it was assumed that borrowing would be required to fund the following amounts related to the high and low range construction/development scenarios. Total Project Cash Cost (minus) City Capital Contribution of $ 300,000 High Range Scenario. Employing the 30,000 square foot new library alternative, this yields the following: Total Project Cash Cost: $ 10,576,000 (minus) City Capital Contribution ( $ 300,000) David M. Griffith & Associates Page D 7 • City of Tustin Library Needs A ent and Facility Plan Appendix D Equals Capital Funds to Be Borrowed: $ 10,276,0000. Low Range Scenario: Employing the least cost scenario for remodeling and expanding the existing facility yields the following: Total Project Cash Cost: $ 7,882,000 (minus) City Capital Contribution ( $ 300,000) Equals Capital Funds to Be Borrowed: $ 7,582,000. (2 ) Then. Borrowing Costs Were Estimated. As noted above, if library construction proceeds and no additional resources are made available by the City or the County Library to fund construction costs, from $ 7.6 to $ 10.3 million will need to be borrowed to provide the resources necessary to support the project. To estimate borrowing and debt repayment costs, we assumed that a bond would be employed to raise the required capital and estimated costs associated with utilizing a bond to fund capital costs. Borrowing to provide the funds outlined above could be funded through a variety approaches, principal of which would be a General Obligation Bond or a special purpose debt instrument bond which could be issued by a Mello - Roos Community Facilities Assessment District. Principal issues associated with these two primary alternatives are as follows: • A General Obligation Bond could be issued by the City or the County to fund the project, but two- thirds voter approval would still be required to fund the revenue source (assumed to a parcel /per household assessment) necessary to fund repayment of principal and interest. If the North Tustin unincorporated area is included in the financing of the project, it would probably be most appropriate to issue the General Obligation Bond through the County and establish a County Service Area to establish the boundaries of the area from which revenues would be generated. • If the service area is limited to the City either the City would pursue approval of the assessment, issue the bond, and use assessment revenue to repay the bond. • A Mello Roos District could be formed covering the service area (City only or City and unincorporated area). However, a two - thirds vote of approval would still be required to approve any revenue generating mechanism for the District. Since this approach would require unestimated legal costs for district formation beyond those associated with project funding, it is not clear that this approach offers any practical advantage over those previously noted. David M. Griffith & Associates Page D -8 • City of Tustin Library Needs A ent and Facility Plan Appendix D To estimate costs associated with borrowing and repaying funds to support capital, we employed the following approach: • • Principal was calculated based on the results of net capital funds require to undertake construction as calculated at the end of Paragraph 3 (1 ), above. Investment banking and related bond issuance costs were estimated based on information provided by an investment banking firm which specializes in the packaging and placement of public agency debt issues. This information indicated that debt issues of the potential scope associated with the Tustin library project ($ 7.6 to $ 10.3 million) would require an additional $ 100,000 to cover investment banking and related services associated with the issue. Again, because capital resources are limited, it has been assumed that these costs would be included in the total amount to be funded by borrowing. This would require the following total amount to be funded under the high and low range scenarios as shown on the next page: David M. Griffith & Associates Page D -9 • City of Tustin Library Needs A ent and Facility Plan Appendix D High Range Project Amount: $ 10,276,000 Financing Costs: 100,000 Total Required: $ 10,376,000 Low Range Project Amount: $ 7,582,000 Financing Costs: 100,000 Total Required: $ 7,682,000 It was assumed that the required amount would be borrowed for 20 years and that the current approximate average interest rate for municipal bonds in California (provided by A.G. Edwards) of 4 % to 5 % would be employed to estimate interest costs. For the purposes of this analysis, we have used 5 % Employing the high and low range scenarios for capital costs, borrowing and annual payment requirements associated with the two scenarios were estimated as follows: High Range Scenario: Principal payments were calculated by dividing the $ 10,376,000 by 20 payment periods yielding an average payment of $ 518,800 per year Average annual interest cost was calculated as follows: Total. Total amount borrowed: $ 10,376,000 Amount Outstanding at the mid -point of the payment period (Year 10): $ 5,188,000. This reflects average annual outstanding balance for the 20 year period. Times .05 for average annual interest rate for the twenty year period: $ 259 400. Principal Average Per Year: $ 518,800 Average Debt Service Per Year $ 259,400 $ 778,200 Low Range Scenario: Principal payments were calculated by dividing the $ 7,682,000 by 20 payment periods yielding an average payment of $ 384 100 per year Average annual interest cost was calculated as follows: Total amount borrowed: $ 7,682,000 David M. Griffith & Associates Page D -10 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 • Total City of Tustin Library Needs A ent and Facility Plan Appendix D Amount Outstanding at the mid -point of the payment period (Year 10): $ 3,841,000. This reflects average annual outstanding balance for the 20 year period. Times .05 for average annual interest rate for the twenty year period: $ 192,050 Principal Average Per Year $ 384 100 Average Debt Service Per Year $ 192,050 $ 576,150 • Then, based on the assumption that a portion of the City's Redevelopment Tax Increment revenue would be available to apply to the project, it was assumed that $ 1 4 million would be available to apply to the project, but that this total would be received over the period from 2000 to 2011 at the amount of $ 116,667 annually This amount would be available to apply to repayment of the principal and debt service associated with library improvements. Given this assumption, unfunded costs for the two scenarios would be as follows: _,_., - Years Unfunded Annual Payments for Capital and Debt Service Low Range Scenario High Range Scenario 2000 2011 $ 459,483 $ 661,533 2012 2020 576,150 778,200 (3 ) Then. the Level of a Parcel Tax or Per Household Assessment Necessary to Cover Unfunded Capital Retirement and Debt Service was Calculated. The following steps were employed to estimate the level of parcel/per household assessment necessary to cover unfunded capital repayment and debt service: • Under one assumption, the analysis assumed that the North Tustin unincorporated area would be included as part of the total service area upon which a parcel tax would be levied. All calculations related to the North Tustin area contained in this report are based on that portion of the North Tustin unincorporated area which is included in the City of Tustin s sphere of influence. This included current assessed valuation, number of parcels and households, and projected future development. The analysis is limited to this portion of the North Tustin area based on data availability Data (assessed valuation; population; parcels; households) for the remainder of the North Tustin Area at this level of detail was unavailable to support accurate projections. David M. Griffith & Associates Page D 11 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 • City of Tustin Library Needs A ent and Facility Plan Appendix D Under the other assumption, the analysis assumed that the parcel tax would be Limited to the City of Tustin (including the MCAS property as it developed). The number of households were estimated based on information provided by the City It was assumed that an assessment would be calculated and levied on a per household/residential unit basis. The table which follows show projected numbers of units by year given current numbers of units and projected growth in the areas noted. Area 2000 2005 2010 2015 Tustin 19,498 19,614 19,641 19,653 MCAS 478 741 1,300 2,191 TOTAL TUSTIN 19 976 20,355 20 941 21,844 North Tustin * 8,083 8 096 8,186 8 198 TOTAL 28 059 28,451 29,127 30,042 * North Tustin area within the City of Tu tin s sphere of influence. These projec ions were then divided into the unfunded capital and debt service costs associated with each of the alternatives as calculated above to estimate the annual per household assessment necessary to cover unfunded costs. The projections were developed for both high and low range development scenarios and based on an areawide assessment (Tustin and North Tustin), and an assessment limited to Tustin (including the MCAS). The tables which follow show these projections with potential assessments calculated based on the average number of units projected for the periods shown in the tables which follow on the next page. David M. Griffith & Associates Page D 12 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 • High Range Scenario City of Tustin Library Needs A ent and Facility Plan Appendix D 1 Estimated Per Household Assessment Per Year for Ca a ital Years Annual Unfunded Capital and Debt Tustin and North Tus in * Tustin Only Tustin Only $ 661,533 Number of Units 28,546 Fee Per Unit Number of Units Fee Per Unit 2000 2011 $ 23 20,424 $ 32 2012 2020 $ 778,200 29,585 $ 26 21,393 $ 36 Twenty Year Avera.e $ 708,200 29,051 $ 24 20 910 $ 34 * North Tustin area included within the City of Tustin s sphere of influence. Low Range Scenario * North Tustin area included within the City of Tustin s sphere of influence These projections indicate that the following parcel taxes would be required to fund capital and debt service costs. Participating Area High Range Capital Costs Estimated Per Household Assessment Per Year for Capital Years Annual Unfunded Capital and Debt Tustin and North Tus in * Tustin Only 2000 2011 $ 459,483 Number of Units Fee Per Unit Number of Units Fee Per Unit 28,546 $ 16 20,424 $ 22 2012 2020 $ 576,150 29,585 $ 19 21,393 $ 27 Twenty Year Avera_e $ 506,150 29,051 $ 17 20,910 $ 24 * North Tustin area included within the City of Tustin s sphere of influence These projections indicate that the following parcel taxes would be required to fund capital and debt service costs. Participating Area High Range Capital Costs Low Range Capital Costs Tustin Onl $ 34 $ 24 Tustin and North Tustin * $24 $17 * North Tustin area included within the City of Tustin s sphere of influence David M. Griffith & Associates Page D 13 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 • City of Tustin Library Needs A ent and Facility Plan Appendix D (4 ) A Comparable Approach Was Employed to Estimate the Level of Assessment Necessary to Fund Projected Revenue Operating Cost Deficits. Operating costs and revenue were projected earlier in this chapter and that analysis indicated that there would be an operating deficit throughout the planning period through 2020 when operating costs for the larger library are compared to service area revenues. Those deficits were as follows: .. 2000 2005 2010 2015 2020 Net Annual Operating Deficit ($ 503 ($ 492) ($479) ($ 471) $ 466) Then, it was assumed that a parcel or per household assessment would be required to fund the deficits noted above in the absence of other practical revenue sources. Again, as with the parcel fee necessary to cover unfunded capital and debt service costs, the per household assessment was calculated limited to the City of Tustin (including the MCAS property) and for the service area which would include the North Tustin unincorporated area. The next table shows these calculations. Years Annual Unfunded Operating Deficit (000) Estimated Per Household Assessment Per Year for Calila! Tustin and North Tustin * Tustin Only 2000 $ 503 Number of Units Fee Per Unit Number of Units Fee Per Unit 28.059 $ 18 19.976 $ 25 2005 492 28.451 17 20.355 24 2010 479 29,127 16 20.941 23 2015 471 30,042 16 21,844 22 2020 466 30.053 16 21.855 21 Period Avera_e $ 482 29,146 $ 17 20,994 $ 23 * North Tustin area included within the City of Tustin s sphere of influence (5 ) The Results Were Combined to Estimate the Total Assessment Required to Fund Library Capital and Operating Costs. David M. Griffith & Associates Page D 14 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 • City of Tustin Library Needs A ent and Facility Plan Appendix D Depending on the library improvement scenario analyzed, per household assessments required to cover unfunded capital and operating cost deficits would be as summarized in the next table. Participating Area High Range Capital Costs Low Range Capital Costs Tustin Onl Ca.ital $ 34 $ 24 O. ratin• $ 23 $ 23 Total Annual Per Unit Assessment $ 57 $ 47 Tustin and North Tustin * Ej !i Ca.ital $ 24 $ 17 •• • $17 $ 23 Total Annual Per Unit Assessment $ 41 $ 40 * North Tustin area included within the City of Tustin s sphere of influence These estimates could vary depending on pace of development and growth; any grant funds to support capital development which would reduce that portion of the projected required assessment; OCPL contribution to support all or a portion of projected collection enhancement costs; and/or any General Fund contribution to operations by the City which could reduce operating deficits needing to be funded by an alternative revenue source. They could also be expected to be slightly lower if the entire North Tustin area was included in the calculations. David M. Griffith & Associates Page D 15