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HomeMy WebLinkAbout1985-260 1 RESOLUTION NO. 85-260 2 RESOLUTION OF THE CITY OF SAN BERNARDINO APPROVING POLICY GUIDELINES ON BOND SALE PROCEDURES. 3 BE IT RESOLVED BY THE MAYOR AND COMMON COUNCIL OF THE CITY OF 4 SAN BERNARDINO AS FOLLOWS: 5 SECTION 1. The Mayor and Common Council of the City of San 6 Bernardino hereby approve the policy guidelines on bond sale 7 procedures, a copy of which is attached hereto as Exhibit "A" and iincorporated herein by reference. The staff of the Redevelopment IAgenCY of the City of San Bernardino is hereby directed to adhere Ito the guidelines hereby established on all bond matters handled I by the Redevelopment Agency for and on behalf of the City of San 8 9 10 11 12 Bernardino. 13 I HEREBY CERTIFY that the foregoing resolution was duly 14 adopted by the Mayor and Common Council of the City of San 15 Bernardino at a meeting thereof, held on regular 16 the 15th day of , 1985, by the following vote, July 17 to wit: 18 AYES: Council Members Reilly. Marks. Ouiel. Frazip.r, 19 , II I I I I I Ii , T::,~o<ego!"g :e:::::!O" !. he~:;:~~ d.y Mayor of the Ci~ of San Be nardino Mayor Pro Tempore Strickler None NAYS: 20 21 ABSENT: Council Members Estrada, Hernandez 22 ~.$..4/~(fP/ / Ci~y Clerk ' 23 24 25 of 26 27 Approved as to form: I ~;#lt:cV City A torney 28 , ' o 1,010-35/03658/rg 07108/85 POLICY GUIDELINES ON PUBLIC AND NEGOTIATED BOND SALE PROCEDURES FOR THE CITY OF SAN BERNARDINO AND THE REDEVELOPMENT AGENCY OP THE CITY OF SAN BERNARDINO The following procedures shall apply to both the City of San Bernardino (the "City") and the Redevelopment Agency of the City of San Bernardino (the "Agency"), as approprilte, to all tax-exempt obligations administered by the Staff of the ACJency and iuued by either the City or the Agency. The pOlicy procedures and guidelines as set forth herein shall be utilized in the processing of all future bond issues of both the City and the Agency. These o procedures shall apply not only to City or Agency initiated projects and bond financinqs but also to conduit financings wherein the ultimate credit sources and the financed liability for the repayment of such bonds is with a private party and not the City or the ACJency. I. INTRODUCTION These Policy Guidelines are intended to apply to all municipal bonds that may be issued by the Agency and to industrial development bonds, single family and multi-family mortgage revenue bonds issued by the City or any other types of municipal bonds issued by either the City or the Agency and which are administered o by the Staff of the Agency. The Staff of the Agency shall be responsible for the coordination among the Staff and the various - 1 - special consultants and counsel that are required for the issuance of municipa 1 bonds ~2POnsu1J:_a_tjon~ithrthe.' Agen~Hunl!:1. The special consultants and counsel that may be required in a particular issue of municipal bonds could include the followinQ: (i) the underwriter who is a licensed broker/dealer and contracts for the initial purchase of bonds from the issuer either by bidding at a competitive sale or by negotiating directly with the issuer depending upon the type of bond issue and the requirements of California law. The underwriter does not purchase the bonds in either event with the intention of holdin<o the bonds for their own investment but rather solely with the intent to resell the bonds either to institutional investors or to retail customers. The underwriter may also enter into arrangements with other underwriters who will also resell all or a portion of the bonds, and, in particularly large bond issues, will provide a greater degree of retail market exposure: (ii) the financial analyst is a special consultant usua lly wi th a backg round in economics or rea 1 estate analysis and is responsible for advising the City and the Agency of the fiscal impacts of a bond issue and the financial advisability and soundness of entering into a bOnd issuance transaction. The financial analyst will, depending upon the type of bond issue involved, analyze cash flOw projections, tax increment cash flows and potential for tax revenue increases, revenues from a particular enterprise project, cash flOw projections from a co~~ercial or industrial revenue producing project; (iii) the financial consultant, who may also be qualified as an underwriter, is retained by the issuer typically in competitively bid bond issues to - 2 - structure the bond issue from the standpoint of marketability of the bonds for initial purchase by an underwriter and for cesale to individual retail custome.s. The financial consultant must be aware of current municipal bond market conditions and should advise the City and the Agency of such items as (a) advisability and costs of bond insurance and ratings, (b) level of debt service coverage factors, (c) ability to issue subordinated or parity debt, (d) extent of revenues or assets pledged to the bond issue, (e) other restrictive covenants or provisions required by purchasers of municipal bonds; (iv) bond counsel provides the necessary legal work in addition to that legal ceview which is necessacy fcom the City Attorney's office, Bond counsel provides speciali~ed lellal services to draft the required resolution of issuance, trust indenture, loan agreement, .eimbursement agreement, deed of trust, promissory notes, and guaranty agreements .w~i::()n5ultat'ion::"'With":'the~Mency Counsel i Additionally, bond counsel must opine as to the legality for issuance of any such bonds under California law and must be certain that all documents as drafted comply both with California law and the applicable federal tax laws and regUlations so as to ensure that such bonds will be and will continue to be exempt from federal income taxation; and (v) special tax counsel is only required on bond issues that involve complex tax considerations such as calculating the yields on the bonds and investments for single family mortgage revenue bond issues and any form of advance cefunding issue. Special tax counsel will usually be retained by the City or the Agency for this limited engagement and may at the same time act as underwriter's counsel to assist in the structuring - 3 - o o c of the bond issue and particularly to draft the bond purchase agreement and the official statement or other disclosure documents. II. PROCEDURES FOR NEGOTIATED SALE OF BONDS A. Selection of Underwriter. The underwriter for the negotiated sale of any particular bond issue shall be selected by the City or the Agency upon reconunendation of Agency Staff, upon response to requests for proposals or upon suggestions as to the underwriter as made by the developer or other project proponent. As described in I. above, the underwriter may also be the financial consultant to the City or the Agency provided that disclosures have been made and certain approvals have been obtained as required by the California Government Code. The form of the underwriter's agreement for the providing of investment banking services and the final bond purchase agreement wherein the final financial terms shall be set forth shall be submitted to the City or the Agency for approval. Requests for proposals for underwriters shall be publiShed only upon specific direction of the City or the Agency. B. Selection of Financial Analyst. At the option of the City or the Agency, a financial analyst shall be selected, in addition to the underwriter, and shall be responsible for evaluating the proposal of the underwriter. As outlined in 1. above, the financial analyst shall be responsible for verifying the cash flow projections, tax increment revenues or other revenues of a project to determine the sufficiency of revenues to meet debt service - 4 - requirements. Such an evaluation shall also relate to the appropriate financial compensation for the underwriter, including discounts and premiums, if any, and interest rates set on the bonds in the bond purchalSe agreement. The financial analyst shall make recommendations to the City or the Agency as to the financial aspects of the transactions as proposed by the underwriter including the rating on the bonds and fiscal viability of the project to be financed. The financial analyst shall advise the City or the Agency as to any and all financial aspects of the proposed bond issue and the fiscal soundness of such issue. A separate agreement for financial analyst service~~hall be considered each time the City or the Agency contracts with an underwriter for the purchase of bonds at a negotiated sale. III. PROCEDURES FOR PUBLIC SALE OF BONDS Selection Of Financial Consultant. The City or the A. Agency shall select a financial consultant who shall be considered as an adviser to the City or the Agency and shall function in a fiduciary capacity to the City or the Agency. The duties of the financial consultant are further outlined in I. above and include the rendering of advice to the City or the Agency as to the recommended structuring mechanisms to obtain the lowest pOlSsible interest cost to the City or the Agency and the most favorable terms to the City or the Agency. The financial consultant shall be responsible for assisting bond counsel in the preparation of documents for the proposed public sale of bonds, shall structure the - 5 - Q Q C) bond issue, prepare the official statement on behalf of the City or the Agency, shall prepllre and distribute the notice inviting bids, the bid form and the official statement to prospective bidders. The financial consultant shall make reconvnendations to the City or the Agency as to the financial aspects of the transaction aa proposed and shall advise the City or the Agency as to any and all financial risks, benefits or other liabilities to the City or the Agency. A financial consultant so retained by the City or the Agency may, as permitted by the Government Code, with the prior approval of the Ci ty or the Agency, submit a bid on such bonds and be awarded such bonds if the financial consultant is either the successful bidder or a member of the syndicate to whom such bonds shall have been awarded. B. Financial Analyst. The financial analyst shall be retained by the City or the Agency to assist the financial consultant in all aspects of the financial preparation of the competitive bid documents. The role of the financial analyst shall be distinguished from that of the financial consultant in that the financial analyst shall be primarily responsible for either the preparation or verification of cuh flow projections, anticipated property tax, sales tax and tax increment revenue projections, analysis of revenue sources from convnercial and industrial projects or from enterprise projects of the City or the Agency. The financial analyst shall render such opinions or reports to the City or the Agency as may be requested to substantiate the cash flows and revenue projections in addition to the sufficiency of debt service coverages. - 6 - o c Q C. Selection of Bidder's List. The financial consult:l1nt shall recommend to the City or the Agency a proposed list of prospective bidders to whom notice inviting bids, bid forms and official statements should be mailed in connection with such public sale of bonds at a competitive bid. Depending upon the size of the issue and its significance, the list of prospective purchasers may be prepared for prospective purchasers both in California and elsewhere in the United States, and the lists shall be as extensive or IS minimal as the financial consultant may deem appropriate. The list of prospective bidders to be uti lized for any particular bond issue shall be selected by the financial consultant in advance and approved by the City or the Agency, and the financial consultant shall make arrangements for the distribution of the official offering documents directly to each bidder on the prospective bidders' list. It is the intent hereof that the bidders' list need not be exhaustive provided that such list includes the most likely possible bidden on a particuhr bond issue considering the rating on the bonos, the repayment source and the generll mlrket conditions. D. Dlte and Place of aid ODeninq. Bids will customarily be opened a t the 0 ff ices 0 f bond counse 1, the t rus tee 0 r fi SCll agent in San Francisco or Los Angeles, or some other convenient location in either San Francisco or Los Angeles in proximity to the prospective bidders. If bids are to be opened in the City of San Bernardino, this would necessitate those members of the finlncial community Seeking to bid on an iuue to have a staff person expend from three to four hours in travel time and bid opening time for a - 1 - () o c prospective bond issue. Such inconvenience and time expenditure is substantially qreater than that required for each such prospective bidder when the bid opening is in San Francisco or Los Angeles. It is recognized that a San Bernardino bid opening could result in fewer bidders on any particular issue. Bid opening dates which are other than Mondays or Fridays are preferable within the bond community. Due to the volatility within the bond muket at any particular time, evaluations for a Monday bid opening require that a decision be made by the prospective bidders on the previous Friday in most instances. This creates the prospects and uncertainty of a change in political or economic conditions over the weekend which could affect the municipa 1 bond market on Monday morning. Accordingly, the City or the Agency will ordinarily be opening bids on Tuesday, Wednesday or Thursday upon recommendation of the financial consultant that such would be advantageous to the particular issue involved. Official action to award bids should be taken as soon as possible after the bid opening and a bid award meeting of the issuer that same day is generally preferred, but in no event later than twenty-six (26) hours after the bid opening. E. Preparation Of Notice Invitinq Bids and Preliminary Official Statement. Bond Counsel and the financial consultant shall cooperetively prepare and review, subject to further review by the financial analyst, all bid documents end disclosure documents including the notice inviting bids, bid form and the preliminary and final official statement. Staff of the Agency and the City Attorney shall have the opportunity to review in advance any such documents. - 8 - o and shall be consulted on a continuous basis to receive their input into the preparation and review of such documents. A copy of each such proposed document shall be forwarded to the City Attorney's Office at the same time that such is submitted to the Aiency Staff for review. The City Attorney shall be assured full opportunity to review and comment upon any anc1 all such documents before they are submitted to the City or the Agency for consideution. Only those official statements or other disclosure documents which are with respect to City or Agency initiated financing projects and not conduit financings Shall be executed by a City or Agency official or -' representative On behalf of the City or the Agency. Any offering statement or other c1isclosure documents with respect to a conduit financing shall be deemed to be the disclosure materials of the 4:) developer, the project proponent or the underwriter and the City and the Agency shall assume no liability or responsibility for the .' adequacy of such materials. Furthermore, the developer, the project proponent and/or the underwriter Shall hold harmless the City and the Agency for all possible federal, State of California and other state security law matters. F. Publication and Distribution of Notices. The financial consultant and bond counsel shall be responsible for complying fully with California law reiardini the publication and distribution of the notice inviting bids. Appropriate notices shall customarily be published in the Daily BOnd Buyer, a national publication, and such other publioations inClUding local newspapers C as the financial consultant and bond counsel may recommend and as - 9 - - required by California law. The financial consultant and bond counsel shall provide information to any persons seeking such information on a prospective bond issue, in addition to any firm that may otherwise be on the prospective bidders' list. IV. PROCEDURES APPLICABLE TO ALL BOND ISSUES Selection of Bond Counsel. Bond counsel shall be A. recommended by the ~f2eiicy'" CouJ;1,~,e,1, and, if applicable, after consu !tat ion with the deve loper or proj ect proponent whose proj ect is to be funded by the issuance of the bonds. The qualifications, experience and fee schedule of bond counsel shall be considered along with any prior experience on issues of bonds for the City. In the event that the City or the Agency upon the recommendation of a project proponent retain bond counsel other than bond counsel currently retained by the City or the Agency, an independent bond counsel may be recommended for retention by the City and the Agency to review all documents presented by such other bond counsel to assure that the interests of the City or the Agency shall be adequately protected, Such independent bond counsel shall consult with the bond counsel selected by the project proponent, the underwri ter, financi a 1 consu ltant, financia 1 ana lyst and the City Attorney to assure full compliance with federal and State of California law and the City and Agency policies and procedures. All bond counsel shall be provided with a copy of the current a~reement for legal services between the Agency and the City 'lrid.. the $rovisions 'of San -Bernardino Municipal Code Chapte'r' 2';-2If'r-"Special Counsel", and shall comply therewith. - 10 - B. Selection of Special Tax Counsel. Special tax counsel sha 11 be ~~<J.~~~~bl' ;;t:he:!,o\genc;y~,~oun$e'l upon recommendation of the financi a 1 consul tant ~.th-:-'--thli:- approval'" of' the ~Mayor-:"'and _ Common! ,-'" - .~ . - '~ouncillror .the Agency, as applicable, but shall be retained only on those bond issues that require computer verification of yield computations and an opinion of special tax counse 1. Such requirements for a special tax counsel opinion are a result of the complex Treasury Regulations and such opinion is usually requested by the bond purchasers, bond insurers and the ratinq agencies for assurance that there is compliance with the technical tax structuring considerations. Special tax counsel would typically be retained by the City or the Agency on single family mortgage revenue bond issues and advance refunding issues because both types involve computer verification of yield computation and interpretation of the applicable federal tax laws and Treasury Regulations. c. Selection of Other Specialized Experts. In the event that the Agency Staff recommends the retaining of special assistance such as a hous ing consu ltant, an economic consul tant, or s imi la r consultant offering special expertise, the City or the Agency shall evaluate the recommendations of Agency Staff in that regard, and may direct preparation of a contract for such assistance by the City Attorney as the City or Agency may deem appropriate. 0, Other Costs of Issuance. In addition to the typical costs of issuance associated with the financial consultant, the financial analyst, bond counsel, special tax counsel and the other - 11 - specialized experts set forth in C. above, other costs of issuance would include such items as (i) bond insurance premiums \:to bond, ~nsuranc:.E!__o,rganizaHon5~~uc.1) a5 MalA, AMBAC or FGIC to obtain a , "MA" rating from Standard & Poor's Corporation or Moody's Investors Service, Inc., (ii) letter of credit application fees and annual renewal fees, (iii) rating agency fees, (iv) bond printing and official statement. notice inviting bids and bid form printing, (v) fee to the California Debt Advisory Commission, and (vi) trustee or fiscal agent fees and counsel. Such additional costs of issuance will typically be paid from the proceeds of the bonds at the time of issuance. In the event the bonds are not issued some of the costs of issuance which are not under contingent fee arrangements will need to be paid either by the City or the Agency if with respect to a City or Agency initiated project or by the project proponent if a conduit financing, E. Informational Meetings. Where a new financing concept is being proposed or some other complicating factor with regard to the structuring or underlying security for a bond issue may apply, either the underwriter or the financial consultant may recommend to the City or the Agency that an informational meeting be held at a convenient downtown Los Angeles or San Francisco location to apprise prospective bidders, purchasers or other underwriters of any such complicated matters to thus assist in the marketability of the bonds, A recommendation of this type shall be made only when the size of the bond issue and its complexity justifies such an informational meeting in the sole opinion of the underwriter or the financial consultant. - 12 - o F. Project Tours. The underwriter, the f inanci III consultant or bond counsel shall determine whether a project tour is justified and may invite investment bankers and other prospective bond purchasers or bidders to view the actual project site and to meet with City and Agency officials and Agency Staff, developers and others who would be responsible for ensuring the success of the proposed project. The size of the issue shall be a major factor in determining whether a project tour should be arranged. When the underwriter, the financial consultant or bond counsel recommends such a project tour be arranged, the underwriter, the financial .' consultant or bond counsel shall advise the City or the Agency as to how the project tour should be structured, the amount of Agency Staff, City and Agency official involvement and the reasons c:; supporting such a project tour. ~ G. Protective Language. Each bond issue shall contain language especially intended foe the full and complete protection of the City or the Agency against liability from any covenants or agre.ments wi thin the bond documents to assure that. in any event. the bondholders shall look only to the revenues pledged for the particular bond issue, and not to the revenues or general funds of the City or the Agency unless specifically pledged in other than a condui t financing. For this purpose, bond counsel is di rected to c include '~n the initial inducement resolution a ~otification that no public; ,funds will be involved..nd bond counsel shall also include in. all subsequent appropriate documents for the type of bond issue ~eing considered, language substantially as follows: - 13 - ,1.. J ,- .... _ ,L Il~L ,~J. .IILJw~~,~ r'~ o "Non-recourse paragraph: The Issuer's obligations hereunder and under the Loan Agreement and the Requlatory Aqreement are on a 'non-recourse' basis, and payment of any amounts which are owed or may become due hereunder or under the Loan Agreement or Regulatory Agreement sha 11 not be enforced against the Issuer or any of its public officials, officers, employees, agents, or other personnel, but only against the property which is subject to the Deed of Trust, and sny further security which may, from time to time, be hypothecated for this Indenture, the Regulatory Agreement or the Loan Agreement," o "E~culpation of Issuer: The Issuer will not be liable to the company, to any bondholder, or to any other persOn for, and the company and the trustee, on behalf of the bondholders, hereby release the Issuer from all liability to the company, any bondholder, or any other person, for losses, costs, damages, e~penses and liabilities even if such losses, costs. damages, e~penses and liabilities directly or indirectly result from, arise out of or relate to, in whole or in part, one or more negligent acts or omissions Of the Issuer or any of the officers, directors, employees, agents. servants or any other party acting for or on behalf of the Issuer in connection with the issuance of the bonds or performance by the Issuer of its obligations under the indenture, the loan agreement, the regulatory agreement, or any other agreement related to the indenture. The Issuer's obligations hereunder are On a 'non-recourse' basis, and payment of any amounts whiCh are owed or may become due hereunder shall not be enforced against the Issuer or any of its public officials, officers, employees. agents. and other personnel, but only against the property which is subject to the Deed of Trust and any other further security which may, from time to time, be hypothecated hereunder." As appropriate, the language shall be changed if the security is something other than a deed of trust. and if the documents being utilized are other than a loan agreement and o - 14 - regulatory agreement. ~otice ot non-recourse and exculpation of the lssuer provisions shall be prominently included in 8~y.:official 'statement 9,r, tl~~e~e.ql1j9J..~n,t:;.dlscl<<2sure.documents. The language shall be sUbject to revision, as may be appropriate, depending upon the documents involved, the type of security offered, and other similar considerations, but in any event language substantially as specified herein shall be included in all appropriate bond documents. In the event that bond counsel recommends aQainst any such language, bond counsel shall specifically advise the City or the Agency that such language not be included with reasoning therefor. Unless such request is so made by bond counsel and approved by the City or the Agency, such language shall be included in all bond issues. H. Itemization of Costs. In situations where the employment ag reement provides that the underwri ter, financial consultant, financial analyst, special consultant or bond counsel are entitled to reimbursement for out-of-pocket expenditures or other costs advanced, such firms shall submit an itemized detailed list of expenditures as previously made to the City or the Agency for approval with a copy to be provided to the Executive Director of the Agency and to the City Attorney for review and prior approval for their recommendation to the City or the Agency. - 15 - I. Costs of Issuance. All expen~es and fees of the underwriter, financial consultant, financial analyst, bond counsel, independent bond counsel and other special consultants shall be the responsibility of the developer in any conduit financing with reimbursement to be made from bond proceeds, and in any bond issue which is an obligation for which specific City Or Agency funds or revenues are pledged such costs of issuance shall be paid by the City or the Agency from other available funds or from bond proceeds. V. FEES TO THE CITY OR THE AGENCY; GUARANTY OF CITY AND AGENCY COSTS The application fees and other amounts charged by the City or the Agency in connection with any industrial development bond financing shall be those fees as imposed from time-to-time as provided in Ordinance No. 3815, as amended, and any other procedural resolutions of the City or the Agency to implement said Ordinance, and . as set forth in San Berna rdino Municipa 1 Code Chapter 12.94. All such fees payable to the City or the Agency shall be established by appropriate resolution which shall also designate the types of municipal bond financings for which such fees shall apply. The fees charged to developers with regard to single family mortgage revenue bonds issued by the City or the Agency shall be those as determined by the underwriters to be the lowest amount necessary based upon market conditions to produce the lowest mortgage interest rate to homebuyers and the least cost possible to - 16 - -.-",...--.. ,,-",-.... the developers. Such fees may include the initial one-half percent (1/2\) application fee required by California law (!i~J...th 'I.!~.!!:Sa f e t f the City prior to :Code Se~Sion SOla~i~et~seQ.) to be deposited with - submitting a formal application to the California Mortgage Bond Allocation Committee. 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