FY2014 Budget Support Act Section 9014 District of Columbia Public Library
Introduction The DC Public Library s Martin Luther King Jr. Memorial Library, located at 901 G Street, NW, needs a major renovation and overhaul to meet the current and future needs of the District of Columbia. This report provides City Council and residents of the District with a progress update on the four points outlined in Section 9014 in the fiscal year 2014 Budget Support Act. Overview The Martin Luther King Jr. Memorial Library is the historically-landmarked Mies van de Rohe-designed building that opened in 1972. It is the only building in Washington, D.C. designed by Mies van de Rohe and the only library he designed. After more than 40 years of use, maintenance of the building is increasingly expensive. Major systems heating, cooling, plumbing and elevators all need to be replaced. Asbestos is present throughout the building. Electrical service needs a substantial upgrade. Annual maintenance is estimated at $5 million and does not address replacing the aging systems. As the building continues to age the maintenance costs are expected to rise. One window costs an average of $15,000 to replace, for example; they have been cracking at an alarming rate, and there are more than four hundred windows in the building. Meanwhile, with funding included in the District s budget in recent years, the DC Public Library worked to modify and improve the building to provide 21 st century library service. Since 2009, a new teen space opened and improvements were made in the access services division. Recently, a redesign of the business room on the first floor transformed the space into a Digital Commons technology hub. At the same time, improvements were made to the Great Hall. History Improvements to the Martin Luther King Jr. Memorial Library have been discussed amongst the library board, City Council and mayors for several years. In 2006, the mayor-appointed Blue Ribbon Task Force issued a report recommending a renovation or relocation of the Martin Luther King Jr. Memorial Library. In December 2006, City Council rejected a plan to build a new main library as part of the development site now known as City Center. Discussions of improving the Martin Luther King Jr. Memorial Library resurfaced in 2011, after the Library had undertaken a concentrated campaign to improve neighborhood libraries. The Library Board engaged the Urban Land Institute (ULI) to assess the condition and suitability of the building as a modern library, and to advise on options for renovation. 2
In November 2011, ULI gathered a team of nationally-recognized experts in architecture, urban planning, development and libraries. After interviews with more than 70 individuals including various stakeholders, tours of the building and nearby area, and conversations with library and District agency staff, the ULI issued its findings in a report that outlined the following options: Renovate the building for sole use by the library. Renovate and add two or more floors to the building, sharing occupancy with other tenant, and using the revenue from the additional space for the renovation of the library. In September 2012, with funding from Mayor Gray, the library engaged The Freelon Group the Martin Luther King Jr. Library architect-of-record at the time, and other consultants to test the options identified in the ULI report and present their findings to the library board and community. Their work and the conceptual images support the following conclusions: It is possible to make the Martin Luther King Jr. Memorial Library a knockyour-socks off library for the 21 st century at the current site, if extensive and expensive improvements were made. The existing structural support system of the building makes it possible to add two floors to the building to accommodate other uses, without additional support. At their November meeting, the library board passed a resolution stating that the central library will remain in its current location, 901 G St. NW, and reaffirmed that it will continue to be called the Martin Luther King Jr. Memorial Library. It also requested the staff to proceed with examining options for additional investment to make it into a state of the art central library. Next Steps The DC Public Library will work with architects and other consultants to explore the options outlined in the ULI assessment and contemplated in the capital funding for the Martin Luther King Jr. Memorial Library included in the fiscal year 2014 budget and beyond. 3
(1) Detailed update on design plans. To date the DC Public Library has conducted the following preliminary design activities for the Martin Luther King Jr. Memorial Library: Building Assessments: The Library completed a detailed analysis of the existing structure s life safety systems, MEP building systems and structural integrity. Site Due Diligence: The Library completed a site survey, title report review, environmental and hazmat assessments, geotechnical study, and utility availability review. Architectural Analysis: The Library completed a massing studies based on zoning, entitlements and physical constraints. Currently, the Library is conducting an open public solicitation for full Architectural and Engineering services. The Library is seeking a firm or team with experience in iconic library design, a strong green/sustainable design aesthetic, familiarity with the District entitlement process, extensive expertise in adaptive reuse of historic buildings and the D.C./federal historic preservation review process, demonstrated success in creating successful public spaces and mixeduse development and a track record of working well with community groups. The final selection in 2014 will be made with input from industry and community stakeholders. 4
(2) Description of Project s Financing including any and all public-private partnerships or use of financing other than District capital funds. The budget approved by City Council for fiscal year 2014 includes capital funding for renovation and redevelopment of the Martin Luther King, Jr. Memorial Library: $3 million in FY14 and $50 million in FY17 and FY18 for a total of $103 million. This assumes multiple floors with at least an equal amount of financing from a private developer. Additional District funds may still be needed. This effort will create the best library to serve District residents today and tomorrow as well as preserve the landmarked Mies van de Rohe design. A new library program to meet this challenge will require more efficient spaces and more technology which will likely result in the library occupying less than 100% of the existing building. Excess or underutilized existing space plus space added could result in additional revenue to fund the library improvements that are so badly needed. Together with the architectural team to be hired and other consultants, the Library will investigate the following options: Renovation Only The renovation only option includes a full renovation of the existing building, replacing all building systems, and introducing more natural light to the building. Renovation and Additional Floors There are two approaches as part of the second scheme that will analyze increasing the density at the site within the existing zoning envelope. With either approach, the Library will ensure the building accommodates the library s needs. While some additional District funds will be needed, the total amount of District funds needed will be reduced by the private partner contribution. One approach is to add two additional floors. This will involve minor structural improvements to the building and no major demolition. Another alternative is to add additional floors to the height limit of the existing building. Funding from a private entity could finance the additional floors and fund a portion of the library. This approach requires the complete demolition of the building interior, constructing the needed structural support, and re-constructing the building and adding floors. This increased density and additional financial support will help achieve the District s goal of a 21st century library, and minimize the draw on the capital budget. If the building is developed to the allowable height limit, a lease/lease back arrangement with a private entity may be possible. This would reduce the amount of District capital funds needed. 5
Any approach will require review by the DC Historic Preservation Review Board, in addition to the Commission on Fine Arts. 6
(3) Detailed timeline on the steps that will be taken leading up to the start of construction in FY2017 and through to completion in FY2018. The timeline for the project varies with each option. Building use and project financing will dictate the overall development schedule. The following are estimated timelines: Renovation Only A complete renovation of the existing building includes and is not limited to replacing all major systems (HVAC, elevators), painting the exterior, replacing the windows, re-organizing interior space, and adding natural light to the interior of the building. The result will be a more efficient building ready to serve District residents for the next fifty years. Condition Assessments The Library is completing additional condition assessments to determine the most effective methods to renovate the building. Estimated completion fiscal year 2014. Programming The Library will continue to analyze the library functions and determine programming configurations for the central library. Design Procurement The Library has initiated the procurement of an architect for this project, selection fiscal year 2014. Entitlements The Library will be the applicant and shepherd the project through the approval process with the DC Historic Preservation Review Board, the Commission of Fine Arts and the National Capital Planning Commission in fiscal year 2015. Design The Library will manage the design and permitting activities for the renovation and interior improvements with duration of approximately 10 12 months in fiscal year 2015. Finance The Library will need additional funding for a renovation. The $100 million in the capital budget will not be sufficient for this scheme. Construct The Library will likely complete construction by fiscal year 2018. 7
Renovation and Additional Floors In the event the Library elects to proceed with a mixed-use program, then DC Public Library will conduct a request for proposal for a public-private partnership to select a private entity to redevelop the building and the appropriate addition. In order to renovate and build a larger building, additional time will be needed for a more intensive entitlement review, to secure funding partner(s) and to undertake the necessary structural improvements. The financing included in the fiscal year 2014 and beyond capital budget assumes that floors are added to the library to the height allowed in the current District zoning regulations. This approach requires demolition of the interior of the building to provide the proper support. The previously mentioned approach: add two floors, does not require major demolition. Both scenarios will be explored with the help of the architectural team to be hired in 2014. Costs, timelines and other information will be provided to the library board, City Council, and Mayor as the project moves forward. For Two Floor Addition OR Build to Height Limit Options: Condition Assessments The Library is currently completing additional condition assessments to determine the most effective methods to renovate and expand the site. Estimated completion fiscal year 2014. Programming The Library will continue to analyze the library functions and determine several programming configurations for the central library in fiscal year 2014. Additional concepts for mixed-use components will also be developed. Design Procurement The Library has initiated the procurement of an architect for this project, selection by fiscal year 2014. Entitlements The Library will be the applicant and shepherd the project through the approval process with the Zoning Commission, D.C. Historic Preservation Review Board, the Commission on Fine Arts and the National Capital Planning Commission in fiscal year 2014 and fiscal year 2015. Approval by the Mayor s Agent for Historic Preservation and possible zoning adjustment are anticipated. Private Entity Selection In fiscal year 2014 and fiscal year 2015 the District will create and solicit private entities to develop the Subject Property based on the program described above. Design The private entity will likely utilize the preliminary designs created by the Library to complete construction documents and be responsible for all permitting activities with duration of approximately 15 24 months in fiscal year 2015 and fiscal year 2016. 8
For Two Floor Addition Option: Finance The available capital budget is not sufficient under this scenario. Because less space for development is created, less revenue returns to the Library. Private entity may be involved. Construct This scheme involves structural improvements to the building, but major demolition is not necessary. Construction will be completed in fiscal year 2019. For Build To Height Limit Option: Finance The available capital budget is not sufficient under this scenario. The Library will fund their costs through available District funding starting the process in fiscal year 2015. The private entity will likely secure debt and equity financing concurrent with the design and permitting process in fiscal year 2015 and fiscal year 2016. Construct The private entity will complete construction by fiscal year 2020. This scheme involves the complete demolition of the building interior to provide proper structural support. 9
(4) Description of the project s community and stakeholder engagement plan with an explanation of how the project will reflect the needs and perspectives of District residents. The DC Public Library believes that the Martin Luther King Jr. Memorial Library building design and the planning process will be improved by broad involvement of residents of the District. The library recognizes we are making changes to a building important to many in this city, and we value the input we receive. We expect to learn both from people who use the library now as well as those who don t use the library. We will communicate with and hear directly from individuals and groups as a part of the community engagement. We will engage residents and groups through all the libraries, District agencies, non-profit organizations, civic groups and more across the city. We will seek input in person and online. We will also use research and analyze demographic data and future projections. We will look at data to help us learn behavioral trends, population and industry growth, and technology usage now and in the future. The library s community engagement will be dynamic and nimble. We will evaluate what s working and what s not working throughout and make adjustments accordingly. Community engagement began a couple of years ago and will continue throughout the project. Here is an overview. Community Engagement To Date As part of the aforementioned ULI assessment, panel members spoke with more than 70 community, civic, business, and elected stakeholders. ULI presented its findings at a community meeting that attracted about 200 people. Attendees had an opportunity to comment on the presentation. About 250 District residents attended the September 2012 architects and consultant s presentation to the library board and another 50 viewed the live stream and participated in the live tweet. Attendees at the presentation and through social media were able to comment and ask questions. In addition, the Council Committee on Libraries, Parks, Recreation and Planning held a special roundtable discussion on the presentation in September, which was broadcast on the District s cable channel and streamed on the City Council website. The ULI report and library board presentation continue to live on the library s website. 10
Community Engagement Continues The DC Public Library will engage District residents through all phases of the project, seeking input on: Building Program Conceptual Framework programs and services offered and layout of areas in the new library. Planning and design/development process including decisions on size of the building and other occupants of the space. Interim library location Information will be disseminated and input sought on these areas in the following ways: Grassroots/Community Outreach The library board, staff and Friends groups will host meetings around the city. Discussions will be held at library board meetings that are open to the public that present opportunities for public input and feedback. Library staff will attend already scheduled meetings around the city, including but not limited to, ANC meetings, PTA meetings, civic group meetings, etc. Library staff will attend already scheduled events around the city, including but not limited to, fairs and festivals, community days, back-to-school events, etc. Library staff will create special opportunities for the community to meet/talk with library staff involved with the project as well as the architect/design team, such as Meet the Architect receptions, design concept presentations and more. Focus groups and surveys with target audiences including teens, seniors, parents of young children, educators and adults will be conducted Information and opportunities for input will be displayed prominently in all D.C. public libraries. Direct mail with information about the project and an invitation to sign up for the mailing list. Online/Social Media Ongoing and prominent presence about the project on the library s website including a page where people can sign up for the mailing list. Establish special blog and twitter pages to provide updates, solicit input, and allow people to sign up for mailing list. Encourage others to post on their blogs and Facebook pages and tweet updates on the project. 11
Advertisements and News Media Library staff will advertise key meetings and opportunities for input in print, online and radio. News media including print and broadcast journalists and bloggers will be invited to presentations, information sessions and conversations with library staff involved in the project and architect/design team. Special Projects Library staff will identify opportunities to involve various target audiences in creating spaces: In partnership with schools and other teen-serving organizations, library staff will work with teens to generate ideas on layout and program ideas for the new teen space. Library staff will work with agencies and organizations that serve seniors and mature residents to help generate ideas for programs and services for seniors. Library staff will work with the technology community to help generate ideas for the digital space. Library staff will create community and library staff crowd sourcing opportunities on the overall building program concept. Legislative/Review Processes Library staff will send appropriate notifications to ANCs. Library staff and architect/design team will present and share information with appropriate review bodies including, but not limited to, Historic Preservation Review Board, Commission on Fine Arts, and more. Library staff and architect/design team will present and share information and respond to questions at City Council roundtables and hearings. 12