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AGENDA ITEM INFORMATION SUMMARY
GENERAL INFORMAnON:
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RDA MANAGEMENT REVIEW:
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CITY DEPARTMENTAL REVIEW:
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INFORMATIONAL DATA FORWARDED TO CITY DEPARTMENTs/COUNCIL OFFICES:
Sent to
Mayor's Office
Council Ward
Council Ward
Council Ward
Council Ward
Department
Department
By
Date
COMMENTS/CONCERNS: Include penlnent comments and concerns of offices and persons clearing the
summary. such as controversial Issues, time constraints and funding complications. Indicate dates when
action must be taken.
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RDA -174
REV. 6-29-89
Redevelopment Agency · City of San Bernardino
300 North "D" Street, Fourth Floor. San Bernardino. California 92418
(714) 384-5081 FAX (714) 888-9413
Pride ..f
" In Progress
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JANUARY 31, 1990
GREENLEAF/NEELEY OPA
Synopsis of Previous Commission/Council/Committee Action:
12-06-89 Item continued to Committee meeting of 12/21/89.
12-21-89 Committee recommended that item be forwarded to Commission.
01-22-90 Commission referred item back to Committee.
01-25-90 Committee recommended that item be forward to'Community
Development Commission and Mayor and Common Council for
approva 1 .
Recommended Motion:
(MAYOR AND COMMON COUNCIL)
A) Move to adopt a RESOLUTION OF THE MAYOR AND COMMON COUNCIL OF THE
CITY OF SAN BERNARDINO CONSENTING TO THE EXECUTION BY THE COMMUNITY
DEVELOPMENT COMMISSION OF THE CITY OF SAN BERNARDINO WITH
GREENLEAF-NEELEY INVESTORS.
(COMMUNITY DEVELOPMENT COMMISSION)
B) Move to adopt a RESOLUTION OF THE COMMUNITY DEVELOPMENT COMMISSION
OF THE CITY OF SAN BERNARDINO AUTHORIZING EXECUTION OF AN AGREEMENT
WITH GREENLEAF-NEELEY INVESTORS AND MAKING CERTAIN FINDINGS IN
CONNECTION THEREWITH.
Respectfully Submitted,
R~~~cting Executive
Director
Supporting data attached: Yes
Ward:
5
FUNDING REQUIREMENTS: $100,000
Project: SC
Commission Notes:
RT:EJ:sm:2656H
Agenda of: February 5, 1990
3
Item No.
Redevelopment Agency
S T A F F R E P 0 R T
Greenleaf/Neeley Investors, a California general partnership, has requested
assistance from the Agency for a 10 building, 360,000 SF industrial
development in the State College Business Park. The proposed agreement would
provide $100,000 in assistance for Phase II (4 buildings totalling 133,246
SF). The assistance is needed to induce Greenleaf to go forward with the
construction of the second phase which will create additional "spec"
industrial space for manufacturing and industrial users looking for relocation
faci 1 ities.
BACKGROUND
In 1988 Greenleaf purchased an 18 acre site in the State College Business Park
(see the attached map). In September of 1988 (see the attached Sequence of
Events), Grean1eaf requested assistance from the Agency. While Greenleaf's
request was prompted by specific difficulties that included resolution of a
drainage problem for the City upchanne1 from the development, an analysis by
the Agency's consulting economist showed that the project warranted an overall
level of assistance ranging between $177,000 and $242,000 (see the attached
letter from Keyser Marston Associates, Inc.).
Both for policy and for legal reasons it is the staff's recommendation that
the assistance be limited to the $100,000 in the proposed agreement. The
validity of the need for assistance has been demonstrated by the slow sales,
despite agressive marketing, of all three projects in that area (Hat1e,
Edwins, and Greenleaf).
It has been a long sought goal of the Agency to produce an adequate inventory
of existing buildings to be able to compete effectively with surrounding areas
in which standing buildings offer users the opportunity to move immediately
into a known facility. The difficulty in obtaining "spec" developers has
testified to the need for assistance in this type of product.
The attached letter from Mr. Dukett describes the nature of the negotiations
with Greenleaf and the legal research that went into the development of the
proposed agreement. Staff was careful, throughout, to indicate that
Commission approval was required for any agreement regardless of the opinions
of the Agency's consultants or staff. Nevertheless Greenleaf was aware that
their needs did meet our criteria for assistance. The letter from Greenleaf
(attached) explains that the reason for the shortfall in funds for the
construction of Phase II is specifically due to a loan undertaken in the
belief that Agency assistance would be forthcoming.
On January 22, 1990, the Commission referred this matter back to the Committee
and asked that staff provide a more comprehensive summary of the project. The
minutes of the previous Committee action, on December 21, 1989, are attached.
RT:EJ:sm:2656H
2
Redevelopment Agency
PROPOSED AGREEMENT
The attached agreement is an Owner Participation Agreement which provides
$100,000 of Agency assistance upon the satisfaction of several "Conditions
Precedent" which generally assure the Agency that it is dealing with the
legitimate owner of the property who has provided all the necessary documents
and has paid all applicable fees. Greenleaf is obligated to commence
construction not later than February 1, 1992.
Project Location
The project is located on parcels I, 2, 3, 4, and 5 of the State College
Business Park on the northerly corner of Hallmark Parkway and Saratoga Hay.
Greenleaf's Obligations
a. record a notice of the agreement which spells out the
antidiscrimination requirements and the development obligations of
the agreement;
b. complete, in the combined phases, construction of ten free-standing
buildings of approximately 350,000 SF with an assessed value of not
less than $6,300,000;
c. complete construction of Phase I not later than February I, 1990,
and;
d. commence construction of Phase II not later than February I, 1992.
Agency Obligations
The Agency is obligated to provide $100,000 in assistance after receipt of
satisfactory evidence of the payment of applicable fees that total as much as
or more than the assistance amount.
RT:EJ:sm:2656H
3
Redevelopment Agency
ANTICIPATED BENEFITS FOR AGENCY AND CITY
In addition to providing a badly needed inventory of spec industrial space in
the City, there will be financial and employment benefits from the project.
Description Estimate
AGENCY: Tax Increment $ 63,000 per year ($23,000 for Phase II)
(@ 1%)
CITY.: Utility Tax $ 42,000 per year ($15,960 for Phase II)
Ci ty fees $252,000 one time ($93,200 for Phase II)
Jobs 315 new jobs,(120 for Phase II)
RECOMMENDA nON
The attached documents have been approved as to form and legal content by
Agency Counsel and Special Counsel and the Redevelopment Committee has
recommended approval. It is therefore, recommended that the proposed
agreement be executed.
RT:EJ:sm:2656H
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GREENLEAF/NEELEY SEQUENCE OF EVENTS (as of January 10, 1990)
March. 1988
Staff met with Greenleaf/Neeley to discuss possible Agency assistance with
drainage channel.
September, 1988
Greenleaf requested assistance and supplied financial information.
October, 1988
Agency requested that Keyser Marston review Greenleaf request for assistance
and make recommendation. Keyser Marston stated that $177,000 was warranted.
Meetings followed to negotiate business points of an OPA.
March, 1989
Matter assigned to Mark Huebsch.
April,1989
Additional documents obtained for Huebsch.
Ju 1 y, 1989
Received draft OPA from Mark Huebsch for drainage channel improvements.
Staff met with Greenleaf to review proposed OPA. During the meeting staff
discovered that all improvements had already been built. Counsel informed
Greenleaf that the Agency could not recommend assistance because it would
constitute a gift of public funds which is a violation of the California
Constitution. Staff then asked Greenleaf ;f they had any other projects that
the Agency could consider. Greenleaf indicated that Phase II would require
some assistance.
Staff ;nformed Greenleaf that a draft OPA dealing only with Phase II would be
prepared and sent to them for review and approval prior to being submitted to
the Commission for consideration.
August 1989
Staff received first
staff and Greenleaf.
draft of current OPA from Mark Huebsch.
Sent back to Mark for revisions.
Reviewed by
October, 1989
Received second draft from Mark. Reviewed and accepted by staff and
Greenleaf. Signed by Greenleaf but sent to their attorneys for final rev;ew.
November. 1989
Received three signed originals of OPA from Greenleaf.
December. 1989
Submitted to Redevelopment Committee. Committee recommended that item be
continued to Committee Meeting of December 21, 1989.
Redevelopment Committee recommended approval and that the item be forwarded to
Commission.
JH:EJ:jmh:2604H
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KeyserMarstonAssociatesInc.
500 South Grand Avenue. Suite 1480
Los Angeles, California 90071
213/622-8095 Fax 213/622-5204
Richard L. Botti
Calvin E. Hollis, II
SAN DIEGO 619/942-0380
Heinz A. Schilling
SAN FRANCISCO 415/398-3050
Timothy C. Kelly
A. Jerry Keyser
Kate Earle Funk
Robert J. Wetmore
Michael Conlon
Denise E. Conley
GC
October 5, 1988
CC 10
Mr. John Hoeger
Development Division Manager
City of San Bernardino Redevelopment Agency
City Hall
300 North "D" Street, 3rd Floor.
San Bernardino, California 92401
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Dear Mr. Hoeger:
In accordance with your request, Keyser Marston Associates, Inc.
reviewed the economics of a proposed industrial development within
the existing State College Business Park, located at the northeast
corner of Saratoga Way and Hallmark Parkway in the City of San Be~-
nardino.
BACKGROURD
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The developer entered into escrow for the z18 acre site in Jan~a1&
of 1988. Upon conveyance of the property the developer intends to
construct 10 industrial structures totaling over 350,000 square
feet of building area. The proposed project consists of general
purpose industrial space in buildings ranging in size from 16,090
to 64,620 square feet. Comparatively, the existing projects within
the State College Business Park consist mainly of owner occupied
buildings that were purchased on a build-to-suit basis. Thus, the
proposed project represents a pioneering venture in this area.
The developer has requested Agency financial assistance to cover
additional costs that were imposed by the City after the land pur-
chase transaction was in escrow. These costs consist of:
1. The City drainage fee for the development, w~ch is cur-
rently estimated at z$35,000. The developer assumed that
these fees had already been paid since he bought the land
in an improved condition. Additionally, the drainage
fees imposed by the City have doubled while this property
has been in escrow.
Real Estate Predevelomnent & Eva! uation Services
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Mr. John Hoeger
October 5, 1988
Page 2
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2. The costs to construct a gunite drainage channel adjacent
to the subject property, and are estimated by the
developer at z$100,000. This drainage channel does not
serve the subject property. However, the channel is cur-
rently eroding onto Saratoga Way, which will ultimately
impact the proposed development. The channel currently
lies on an easement, and is a maintenance liability of
the City.
At the Agency's request, KMA assessed the financial feasibility-~f
the project, as proposed, to determine whether the requesetd
$135,000 in Agency assistance is warranted. Additionally, ~
analyzed the broad policy implications associated with provi~A9
this type of assistance. -~
AlIALYSIS
~
KMA performed a cost/income analysis of the proposed project bas!d
upon the developer's current pro forma and site plan. The cost es-
timates are based on the actual costs incurred to construct similar
industrial buildings in the San Bernardino area. The income
analysis is based on field surveys and interviews conducted with
brokers familiar with the San Bernardino industrial market.
The cost and income projections are presented in Tables 1 and ~.
These projections were then used to determine the project's val\te
upon completion, as shown in Table 3. The basic assumptions u~d
in this analysis are as follows:
-.;t
The developer indicated that the -land cost _wetS
$2,027,000, or $2.58 per square foot of land area.
2. Shell costs were estimated at $24 per square foot. This
cost level allows for the construction of single user
buildings rather than multi-tenant facilities. Addition-
ally, these costs include site work and architecture and
engineering fees.
1.
3. Indirect costs were based on a percentage of direct
costs, with the exception of city permits and fees, which
were based on the developer's estimate.
4. Project financing costs consist of loan orig~tion fees,
interest during construction and the costs ~n excess of
income during the initial lease-up period. Construction
and permanent loan fees were estimated at 2.5% of total
project costs. Interest during construction was based on
Key-serMarstonAssociatesInc.
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Mr. John Hoeger
October 5, 1988
Page 3
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a 9 month construction period at an 11.5% interest rate.
Costs during lease-up were projected on the basis of an
18 month absorption period.
5. The project consists of 10 industrial structures totaling
352,497 square feet of building area. The achievable
rent level was set at $.35 per square foot per month on a
triple-net basis.
6. Expenses include a 3% management fee, and an allowa~e
for reserves for capital improvements at $.05 per square
foot of building area. _~
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Based on the above assumptions, the estimated development costs.tO-
tal approximately $13.29 million, and net income before debt serv-
ice is estimated at $1,347,000. Utilizing these figures, KMA c~-
culated the warranted financial assistance to this project uS~B9
two methodologies. The first method is based on the developer~s
return on equity, and the second approach is based on the project's
value upon completion.
Using the return on equity approach, the determination of warranted
assistance is based upon the maximum achievable loan and warranted
equity contribution to the project. As presented in Table 3, at a
1.15 coverage ratio and a 10.75% mortgage constant (10.25% interest
rate, 30-year amortization), the project can support $10.89 milliQn
in debt. If the developer requires an 8% return, at stabilizat~,
on any equity investment, the supportable equity contribution ~s
$2.2 million. When reduced by the estimated development costsu-
cluding the reduced carrying costs required due. to the upfr~
provision of assistance, the net warranted assistance is $177,000.
The second method of determining warranted assistance is to es-
timate the project value upon completion of construction, based on
the capitalization of stabilized income. As shown in Table 3, the
net income of $1,347,000 capitalized at a 9% rate yields a value of
$14.97 million. After deducting the imputed costs of sale, a
reasonable developer's profit and the reduction in carrying costs,
the warranted assistance is $242,000.
CORCLUSIOR
The preceding analysis demonstrates that the economic~aracteris-
tics of the proposed project indicate a need for at least the
$135,000 in assistance requested by the developer. However, it is
necessary to consider whether the assistance is required because
the developer overpaid for the property, or if circumstances beyond
Key-serMarstonAssociatesInc.
Mr. John Hoeger
October 5, 1988
Page 4
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his control intervened after the land had been"--purchased.
Moreover, the Agency must also consider the wide reaching policy
implications of providing assistance to this project, in terms of
the precedents that will be set for future projects.
With regard to the issue of waiving drainage fees, KMA recommends
that the Agency nQt comply with this request, for the following
reasons:
1.
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3.
The drainage fee is a city-wide assessment, rather tha~a
site-specific fee. Thus, this cost is applied to bOlh
improved and unimproved parcels. Therefore, the prop~~d
project is being burdened with the same costs as will~be
assessed to other similar projects. -~
The potential for costs increases is a typical risk~
the development process. Developers should be aware t1r~t
the City fee structure is subject to change at any ti~e
before building permits have been secured.
If the Agency waives the increased drainage fees costs
for this parcel, it will represent a precedent-setting
action for other developments facing similar fee in-
creases.
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Comparatively, KMA believes that the Agency should reimburse the
developer for the gunite drainage channel, due to the follow~g
considerations:
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It is the City's legal responsibility - to maintain .-tile
channel, and it is currently anticipated that such an im-
provement will be necessary during the near-term.
2. The developer is willing to undertake the actual con-
struction of the gunite channel at a fixed maximum cost
of $100,00. Therefore, effectively the City could trans-
fer the risk of cost overruns to the developer.
1.
In summary, it is our opinion that the developer's request for a
fee waiver should be denied, but that the Agency should accept the
re~ponsibility for the costs associated with improving ene drainage
channel. However, in the event the Agency proceeds along that
course, it will be necessary to retain approval ri~s for the
quality level and costs of the proposed channel. -
KevserMarstonA<;~ciatf'<; T nr
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Mr. John Hoeger
October 5, 1988
Page 5
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We appreciate this opportunity to be of assistance, anlTare avail-
able to answer any questions you may have.
Yours very truly,
KEYSER MARSTON ASSOCIATES, INC.
~ If. II~ (!-f.~)
Kathleen H. Head
Pl~ C p~
Mark E. Pickell
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TABLE 1
ESTIHATED DEVELOPMENT COSTS
SREENLEAF INDUSTRIAL
SAN BERNARDINO, CALIFORNIA
LAND
DIRECT COSTS
BUILDING SHELL
HULTI-TENANT INDUSTRIAL (I)
TOTAL DIRECT COSTS
INDIRECT COSTS
PERHlTS I FEES
~ INTEREST DURING CONSTRUCTION
~ LAND I SITE WORK
~ BUTLDING
PV NEGATIVE CASH fLOWS
~- FINANCING FEES
~ LEGAL/CLOSING
~ - LFASING FEES
~ TAXES/INSURANCE
DEVELOPMENT HANAGENENT
'ONTHiGENCY
TOTAL INDIRECT COSTS
TOTAL DEVELOPMENT COSTS
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~. 1) INCLUDES SITE YORl AND A I E FEES
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SOURCE: IEYSEF. HARSTON ASSOCI~TfS, IHC.
FILE NAn[: IGREEN: OCT08ER, 1983.
352,497 SF
ALLOIlANCE
0.75 YEAKS
0.75 YEARS
0.025 PUINTS
1.0DZ DIRECT COSTS
20.00% GEl
1.00% DIRECT COSTS
2.00% DIRECT COSTS
3.00% DIRECT COSTS
124.00 /SF
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S2,027,000
SlI,460,000
---------
S8,460,OOO
S405,000
175,000
456,000
574,000
315,000
85,000
281,000
85,000
169,000
254,000
---------
S2, 799 ,000
113,286,000
OR SAY
S13,290,000
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TABLE 2
ESTIKATED HET INCOHE
GREENLEAF INDUSTRIAL
SAN 8ERNARDINO. CALIFORNIA
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INCOHE ;e.
MULTI-TENANT INDUSTRIAL 352,497 SF 14.20 ISF 11,480,500
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GROSS INCONE SJ,41:10,500
(LESS) VACANCY ANO COLLECTION 5.00% GROSS INCONE 74,000
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GROSS EFFECTIVE INCONE IJ,406,500
EXPENSES
IIANAGEHENT FEE 3.00% GROSS INCONE 42,200
RESERVES 352,491 SF 10.05 ISF 17,600 ~
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~ TOTAL EXPENSES S59,800 - .
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HET OPERATING INCONE IJ,3.47,000
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SOURCE: (EYSER HARSTON ASSOCIATES, INC.
FILE NAHE: IGREEN: OCTOBER, 1988.
TABLE 3
WARRANTED PUBLIC ASSISTANCE
GREENLEAf INDUSTRIAL
SAN BERNARDINO, CALIFORNIA
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--------------------------------------RE!URN TO fOUITY-------------------------------------
NET INCOME BEFORE DEBT SERYICE
AYAIlA&l[ FOR DEBT SERYICE
NET IHCOIIE AFTER DEBT SERYICE
MAXI HUH DEBT
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WARRANTED INVESTMENT
DEBT
EQUITY
TorAl WARRANTED INVESIHENT
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(LESS! DEVELOPHENT COSTS
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1ARRANTED ASSISTANCE
1.15 COVERAGE
10.751 CONSTANT
8.00% RETURN
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11,347,000
1,171 ,000
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S176 , 000
110,893,000
110,893,000 ~
2,200,000
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13,290,000 ~
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(1197,000) ~
($177,278)
OR SAY
(1177,000)
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Nfl INCOIlE mORE DEBT SERVICE
CAPITALIZED VALUE
(LESS) DEYELOPIlENT ceSTS
(LESS) COST OF SALE
(lESS) DEVELOPER PR~fJT
WARRANTED ASSISTANCE AND CARRYING COSTS
WARRANTED ASSISTANCE
SOURCE: (EYSER HARSTON ASSOCIATES, INC.
FilE HAHE: IGREEH: OCTOSER, 1983.
9.00%
3.00% VlllUE
1O.00! V/ILUE
11,:s.7,OOO
14,967,000
13,290,000
449,000
1,497,000
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OR SAY
(1269,000)
($242,070)
(1242,000)
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, L'ancaster Redevelopment Agency
44933 North Fern Avenue · Lancaster, California 93534
805-723-6128 FAX 805-723-6~41. . '~
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lanuary 9, 1990
4'.:2
Mr. lohn Hoeger
Redevelopment Manager
San Bernardino Redevelopment Agency
300 North "0" Street, Fourth Floor
San Bernardino, California 92418
Dear lohn:
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It was great to hear from you on Monday and especially to hear how well things are going with you
and the Agency. It is nice to know that many of the projects I had the privilege to work on with you
and other members of staff are continuing forward and soon will become reality. As always, I wish
you and the Agency much continued success. Please give my best regards to all the staff and to my
friends on the Commission.
During our conversation you asked me to confIrm the status of the Agency's staffs negotiations with
Greenleaf-Neeley during my tenure as Executive Director. As we discussed, Greenleaf-Neeley
requested approximately $100,000 in Agency assistance to offset some of the costs of constructing
offsite storm drain improvements required for the fIrst phase of their industrial project in the State
College Redevelopment Area. If I am not mistaken, this project's concept predates my arrival in San
Bernardino. In addition, if my memory serves me correctly, this level of subsidy was reviewed by
Keyser Marston ann found to be reasonable. Staff subsequently ordered the appropriate development
agreement to be drafted by Special Counsel and advised the developer of our efforts.
Unfortunately, at the time of fInal review of the development documents, staff discovered that the
improvements had already been built. To the best of my knowledge, no member of staff advised them
that it would be acceptable for them to do this. As a result, per the February 2, 1989 opinion of
Stradling, Yocca, Carlson and Rauth (based upon the Attorney General's Opinion No. 85-1104 of
lune 24, 1986) which Mark Huebsch, Esq. verbally confIrmed once again as it relates to this case, we
recognized that we could not recommend the subsidy requested by the developer because if the
Commission approved it, it would constitute a gift of public funds in violation of the California
Constitution making each of them personally liable.
We advised the developer of this problem. They, of course, exclaimed ignorance relative to this issue.
We then asked them if they had any subsequent projects that the Agency could consider. They
indicated that the second phase of their project would also require signifIcant public improvements.
Johl'! Hoeger
lanua.ry 9, 1990
Page 2
We infonned them that subject to drafting of an appropriate agreement. staff would recommend that the
Commission consider their request. Further. we cautioned them not to construct any of the
improvements they were seeking assistance on prior to the Commission's consideration of the
agreement and that only the Commission could legally bind the Agency.
As you know, this matter was not resolved prior to my depanure. I understand that the matter was
recently forwarded for Commission consideration and that the Chairman has inquired about its
background and requested my comments. I trust that you find the above useful.
IT J can be of further service or you have any questions, please feel free to call me at (805) 723-6128.
:ti~
N H. DUKETI
. elopment Director
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IN 18 '90 13:07 GREENI ~CfF DEVELOPMENT
714 966 3265 ~
" 2
P.2
GREENLEAF
Development ComPlny
January 18, 1990
Ezell James, Sr.
Senior Project Manager
REDEVELOPMENT AGENCY
CITY OF SAN BERNARDINO
300 North "D" Street
San Bernardino, California 92418
Reference: State College Business Park
San Bernardino, California
Dear Ezell:
Prior to the Redevelopment Council Meeting on Monday, in
which our project is on the Agenda for final approval, I
want to give you an update of the project's status.
We anticipate completion of the first six buildings of Phase I
to be February 1. On. of the buildings has be.n leased to
C & M Fine Pack, Inc., who is presently located in State
College and we are working with two other prospective companies.
It is our desire to commence the final drawings for Phase
II (4 buildings). A concern we have regarding the decision
to proceed is the possibility of not receiving the financial
assistance we have requested from the Redevelopment Agency.
As you know, the Agency had advised us we would receive reimbursement
for constructing the drainage channel, and thus alleviating
the existing drainage problem, which the City was having
to maintain. Ba8ed on this, we borrowed money and proceeded
with the new channel construction. Without the reimbur.ement
there are not sufficient construction funds for the second
phase of buildings.
Ezell, we are extremely pleased with the project and feel
we are building a p~oj.ct that the City of San Bernardino
can also be proud of.
Should there be any questions regarding the request for assistance
or our project, please call.
Thank you very much.
Sincerely,
GREENLEAF ~~COMPANY
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