Legislature(2017 - 2018)HOUSE FINANCE 519

05/08/2017 01:30 PM House FINANCE

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01:34:07 PM Start
01:35:22 PM Presentation: Deferred Maintenance
02:49:00 PM Adjourn
* first hearing in first committee of referral
+ teleconferenced
= bill was previously heard/scheduled
+ Presentation: Deferred Maintenance by Adam TELECONFERENCED
Bryan, Capital Coordinator, OMB
+ Bills Previously Heard/Scheduled TELECONFERENCED
                  HOUSE FINANCE COMMITTEE                                                                                       
                        May 8, 2017                                                                                             
                         1:34 p.m.                                                                                              
                                                                                                                                
                                                                                                                                
1:34:07 PM                                                                                                                    
                                                                                                                                
CALL TO ORDER                                                                                                                 
                                                                                                                                
Co-Chair Seaton called the House Finance Committee meeting                                                                      
to order at 1:34 p.m.                                                                                                           
                                                                                                                                
MEMBERS PRESENT                                                                                                               
                                                                                                                                
Representative Paul Seaton, Co-Chair                                                                                            
Representative Les Gara, Vice-Chair                                                                                             
Representative Jason Grenn                                                                                                      
Representative Lance Pruitt                                                                                                     
Representative Steve Thompson                                                                                                   
Representative Cathy Tilton                                                                                                     
Representative Tammie Wilson                                                                                                    
                                                                                                                                
MEMBERS ABSENT                                                                                                                
                                                                                                                                
Representative Neal Foster, Co-Chair                                                                                            
Representative David Guttenberg                                                                                                 
Representative Scott Kawasaki                                                                                                   
Representative Dan Ortiz                                                                                                        
                                                                                                                                
ALSO PRESENT                                                                                                                  
                                                                                                                                
Adam Bryan, Capital Coordinator, Office of Management and                                                                       
Budget, Office of the Governor                                                                                                  
                                                                                                                                
PRESENT VIA TELECONFERENCE                                                                                                    
                                                                                                                                
Mark Davis, Director, Statewide Facilities Services                                                                             
Division,   Department   of    Transportation   and   Public                                                                    
Facilities                                                                                                                      
                                                                                                                                
SUMMARY                                                                                                                       
                                                                                                                                
PRESENTATION: DEFERRED MAINTENANCE                                                                                              
                                                                                                                                
Co-Chair Seaton addressed the meeting agenda.                                                                                   
                                                                                                                                
^PRESENTATION: DEFERRED MAINTENANCE                                                                                           
                                                                                                                                
1:35:22 PM                                                                                                                    
                                                                                                                                
ADAM BRYAN,  CAPITAL COORDINATOR,  OFFICE OF  MANAGEMENT AND                                                                    
BUDGET,  OFFICE  OF  THE  GOVERNOR,  provided  a  PowerPoint                                                                    
presentation  titled "State  of Alaska  Deferred Maintenance                                                                    
Overview: House  Finance Committee" dated May  8, 2017 (copy                                                                    
on file).                                                                                                                       
                                                                                                                                
1:36:02 PM                                                                                                                    
                                                                                                                                
Mr. Bryan began  on slide 2 and addressed  "What is Deferred                                                                    
Maintenance?":                                                                                                                  
                                                                                                                                
        · Maintenance that is postponed due to lack of                                                                          
          resources                                                                                                             
             o Replacement of building components as they                                                                       
               reach end of useful life such as roofs or                                                                        
               HVAC systems                                                                                                     
        · Deferred maintenance projects are mostly items                                                                        
          that entities cannot address through preventative                                                                     
          maintenance                                                                                                           
             o Preventative maintenance is important to                                                                         
               managing growth and severity of future                                                                           
               deferred maintenance                                                                                             
             o Each entity manages maintenance                                                                                  
               independently                                                                                                    
             o Legislature appropriates funding for                                                                             
               preventative maintenance annually -                                                                              
               facilities management allocations; Public                                                                        
               Building Fund                                                                                                    
             o Maintenance decisions must consider changing                                                                     
               business needs                                                                                                   
                                                                                                                                
Co-Chair  Seaton  asked  whether  there  was  a  distinction                                                                    
between maintenance and preventative maintenance.                                                                               
                                                                                                                                
Mr.  Bryan  answered  that they  could  be  interchangeable.                                                                    
Deferred  maintenance   was  something  that   exceeded  the                                                                    
department's  operating budget,  or it  could be  outside of                                                                    
the expertise of the department's regular staff.                                                                                
                                                                                                                                
Co-Chair  Seaton mentioned  that  Representative Pruitt  had                                                                    
joined the meeting.                                                                                                             
                                                                                                                                
1:38:14 PM                                                                                                                    
                                                                                                                                
Vice-Chair  Gara  asked  whether  deferred  maintenance  was                                                                    
defined by  those things which  were beyond repair  and were                                                                    
causing further  damage, such  as in the  case of  a leaking                                                                    
roof causing damage to the interior of a building.                                                                              
                                                                                                                                
Mr.  Bryan replied  that was  a  good example.  Preventative                                                                    
maintenance would highlight a leak  in the roof. If that was                                                                    
not  addressed,  the  underlying   structure  may  rot,  and                                                                    
accelerate the need to replace  the roof. He suggest that as                                                                    
a metric it was probably rather subjective.                                                                                     
                                                                                                                                
1:39:16 PM                                                                                                                    
                                                                                                                                
Mr.  Bryan turned  to slide  3 titled  "How many  Facilities                                                                    
does the State Maintain?":                                                                                                      
                                                                                                                                
        · Over 2,200 facilities                                                                                                 
        · 14 entities including University of Alaska and                                                                        
          Courts                                                                                                                
        · 19 million square feet of space                                                                                       
        · Combined replacement value of $8.6B                                                                                   
                                                                                                                                
Co-Chair  Seaton  asked  to hold  subject  matter  questions                                                                    
until the end.                                                                                                                  
                                                                                                                                
Representative  Pruitt  asked  for  verification  the  2,200                                                                    
facilities on slide 3 were owned.                                                                                               
                                                                                                                                
Mr.  Bryan  answered  in the  affirmative.  He  advanced  to                                                                    
slide 4 titled "What do our Facilities Look Like?":                                                                             
                                                                                                                                
        · Types of facilities vary by entity                                                                                    
               o DOA manages general office space                                                                               
               o DOC and DHSS both manage 24 hour                                                                               
                  facilities                                                                                                    
               o DMVA manages base facilities and statewide                                                                     
                  armories                                                                                                      
               o DNR    oversees   park    service   cabins,                                                                    
                  shelters,     fire     suppression     and                                                                    
                  preparedness shops                                                                                            
                                                                                                                                
Mr. Bryan  indicated the  graph showed  space owned  by each                                                                    
department  versus the  number of  facilities, and  said the                                                                    
comparison could  be made for  other departments.  He stated                                                                    
that  the  mission of  an  agency  directly related  to  the                                                                    
amount  of  square  footage  it   required  to  promote  its                                                                    
message. For  example, the Department of  Transportation and                                                                    
Public  Facilities   (DOT)  had  a  series   of  maintenance                                                                    
stations, and the University  had campuses with institutions                                                                    
where they taught of conducted research.                                                                                        
                                                                                                                                
Representative  Wilson   wondered  how  DOT  had   the  most                                                                    
facilities but appeared second in the graph.                                                                                    
                                                                                                                                
1:42:50 PM                                                                                                                    
                                                                                                                                
Mr.  Bryan answered  the  two graphs  showed  the number  of                                                                    
buildings and total square footage, respectively.                                                                               
                                                                                                                                
Representative Grenn asked whether airports came under DOT.                                                                     
                                                                                                                                
Mr. Bryan relayed DOT would  be presenting the final part of                                                                    
the presentation but he did not believe so.                                                                                     
                                                                                                                                
Co-Chair  Seaton asked  about how  many facilities,  such as                                                                    
sheds or storage, were under 1,000 square feet.                                                                                 
                                                                                                                                
Mr. Bryan  replied that  he did  not have  a slide  with the                                                                    
data.                                                                                                                           
                                                                                                                                
Co-Chair Seaton noted they could get the data later.                                                                            
                                                                                                                                
Mr.  Bryan  turned to  slide  5  titled "Statewide  Deferred                                                                    
Maintenance Totals":                                                                                                            
                                                                                                                                
        · Total of $1.84 billion, including                                                                                     
                  o Executive agencies and Courts - $1.6                                                                        
                    billion                                                                                                     
                  o School District Major Maintenance $240                                                                      
                    million; $165 million as the State                                                                          
                    share                                                                                                       
        · Total peaked at $2.3 billion in FY2012                                                                                
                  o Reduced significantly through a five-                                                                       
                    year funding plan                                                                                           
        · Expect to trend up without consistent funding                                                                         
                                                                                                                                
Representative Wilson asked  if it was based on  bonds or on                                                                    
Regional  Educational Attendance  Area  (REAA) schools,  for                                                                    
which the state was largely responsible.                                                                                        
                                                                                                                                
1:45:08 PM                                                                                                                    
                                                                                                                                
Mr.  Bryan  responded  there was  a  program  called  School                                                                    
District Participation  in Grant  Program in  statute, where                                                                    
school  districts  could apply  to  the  state to  fund  new                                                                    
construction  for  schools,  or  for  major  maintenance  or                                                                    
deferred   maintenance.   The   state  would   grant   those                                                                    
undesignated  general  funds  (UGF),  therefore  they  would                                                                    
generally not bond for that.                                                                                                    
                                                                                                                                
Representative  Wilson assumed  the same  group of  projects                                                                    
could be  utilized by bonding  out for communities  as well.                                                                    
She  noted  that communities  had  previously  come [to  the                                                                    
state] to receive free money  versus bonding. She asked what                                                                    
the difference would be for  communities with the ability to                                                                    
bond for the programs if  necessary versus REAA schools that                                                                    
were without bonding authority.                                                                                                 
                                                                                                                                
                                                                                                                                
Mr.  Bryan  would  have  to check  with  the  Department  of                                                                    
Education and Early Development  (DEED) for the information.                                                                    
He did  suggest that a  school district could bond,  and was                                                                    
not forced to participate in the state program.                                                                                 
                                                                                                                                
Representative Wilson  asked if there  was a point  at which                                                                    
DEED would  say that  a school  could no  longer participate                                                                    
and should employ the mechanism to bond.                                                                                        
                                                                                                                                
Mr. Bryan  said he would defer  to DEED and that  he did not                                                                    
think the department could force school districts to bond.                                                                      
                                                                                                                                
Representative  Wilson stated  they could  not be  forced to                                                                    
bond, but the department could remove them from the list.                                                                       
                                                                                                                                
Co-Chair Seaton  replied there was a  major maintenance list                                                                    
and the  preceding year the  school bond  debt reimbursement                                                                    
was around  $120 million, of  which $96 million was  UGF. He                                                                    
believed the  Public School Trust  was involved on  the bond                                                                    
debt  reimbursement side.  The grant  portion was  for those                                                                    
that did not  have the ability to bond as  they did not have                                                                    
municipal  owned   buildings.  The  schools  that   were  in                                                                    
municipalities  could  apply for  the  grants,  but did  not                                                                    
generally  receive  them, and  generally  had  to bond.  The                                                                    
governor had vetoed $30 million,  or 25 percent, of the bond                                                                    
debt reimbursement in the previous year.                                                                                        
                                                                                                                                
Representative  Wilson responded  that  her  point was  that                                                                    
there  were   some  buildings  for   which  the   state  was                                                                    
responsible in  REAAs. The  state helped  out municipalities                                                                    
when possible and  perhaps the bonding came  back. She asked                                                                    
whether  the state's  total  financial responsibility  might                                                                    
shift  if it  was only  accountable for  REAAs versus  other                                                                    
municipalities  that chose  to  be on  the  list, but  could                                                                    
potentially have the ability to bond at some point.                                                                             
                                                                                                                                
1:49:11 PM                                                                                                                    
                                                                                                                                
Mr.  Bryan  relayed   that  statewide  deferred  maintenance                                                                    
totals had  peaked at $2.3  billion in  FY 12 and  had since                                                                    
been  reduced significantly  through a  five-year investment                                                                    
in  deferred  maintenance  through the  capital  budget.  He                                                                    
turned  to  slide  6  titled  "FY2017  Deferred  Maintenance                                                                    
Backlog  by  Entity."  He  indicated  as  long  as  deferred                                                                    
maintenance was  not funded, the  backlog would  continue to                                                                    
increase. The pie chart on  the slide showed the majority of                                                                    
deferred maintenance  backlog was  within the  University of                                                                    
Alaska  at  54 percent  ($1  billion),  and  DOT was  at  19                                                                    
percent  ($347 million).  School district  Major Maintenance                                                                    
requests total at  13 percent ($240 million),  and all other                                                                    
entities  totaled   14  percent  ($252  million).   Slide  7                                                                    
included   an   additional   chart  showing   the   deferred                                                                    
maintenance backlog. He underlined  that about 75 percent of                                                                    
the backlog was associated with the University and DOT.                                                                         
                                                                                                                                
1:50:57 PM                                                                                                                    
                                                                                                                                
Mr. Bryan  moved to  slide 8 with  a chart  showing deferred                                                                    
maintenance  funding   history,  broken  out   by  statewide                                                                    
deferred maintenance and  school district major maintenance.                                                                    
He had  data going  back to FY  98 for  deferred maintenance                                                                    
and  to FY  05 for  school district  major maintenance.  The                                                                    
blue bar  indicated statewide  deferred maintenance  and the                                                                    
red  bar  indicated school  districts.  Starting  in FY  09,                                                                    
there was quite a bit of  money going into the two programs,                                                                    
then  FY 11  through FY 15  marked the  period in  which the                                                                    
five-year program was implemented.                                                                                              
                                                                                                                                
Co-Chair Seaton asked  whether he was referring  to the $100                                                                    
million for five years to address deferred maintenance.                                                                         
                                                                                                                                
Mr.  Bryan   replied  that  the  prior   administration  had                                                                    
committed  $100  million per  year  for  five years  in  the                                                                    
capital budget.  The actual figures  exceed that  amount, so                                                                    
the legislature  had appropriated more. He  pointed out that                                                                    
funding  was  sporadic, with  large  swings  and spikes.  He                                                                    
turned  to  slide  9  and   continued  to  address  deferred                                                                    
maintenance history:                                                                                                            
                                                                                                                                
        · From FY1998 to FY2010, DM funding was sporadic                                                                        
               and inconsistent                                                                                                 
               o Spikes in 1999 ($53M), 2006 & 2007 ($33M),                                                                     
                  2009 ($127M)                                                                                                  
               o Low years 2000-2005 averaged $6.5M                                                                             
        · FY2011 began a five-year initiative to address DM                                                                     
               backlog                                                                                                          
               o Gov initiative of $100M annually for five                                                                      
                  years                                                                                                         
               o Actual average funding of $123M for DM;                                                                        
                  $18.6M for School Districts                                                                                   
                                                                                                                                
Mr. Bryan  moved on to  the deferred maintenance  backlog on                                                                    
slide 10. There  had been a rapid decline between  FY 15 and                                                                    
FY  16.  The  chart  showed  a  decreasing  overall  backlog                                                                    
because not all of the  money appropriated was spent in that                                                                    
same fiscal  year. It was  typical for  deferred maintenance                                                                    
allocations  to  be used  over  several  years, as  agencies                                                                    
began to  line up  for deferred maintenance  projects. There                                                                    
had been  a rapid increase  in the size of  capital budgets,                                                                    
and  it took  time for  the  agencies to  prepare for  those                                                                    
projects.                                                                                                                       
                                                                                                                                
1:55:00 PM                                                                                                                    
                                                                                                                                
Mr. Bryan moved  to slide 11 and provided an  example of the                                                                    
Department  of Health  and Social  Services (DHSS)  deferred                                                                    
maintenance management:                                                                                                         
                                                                                                                                
        · Annual facility condition audit                                                                                       
        · Projects are logged on an ongoing basis in a                                                                          
              Capital Asset Management system                                                                                   
               o 4 project categories                                                                                           
                  · Fire and Life Safety                                                                                        
                  · Security                                                                                                    
                  · Building Integrity                                                                                          
                  · Code     Requirements    and     Mission                                                                    
                    Efficiency                                                                                                  
               o Priority weight applied (high, medium,                                                                         
                  low)                                                                                                          
               o Facility Condition Index factor                                                                                
               o 24 hour facility factor                                                                                        
                                                                                                                                
Mr. Bryan outlined the system  for prioritizing projects. He                                                                    
gave the example of DHSS  which had various facilities, such                                                                    
as the  Alaska Psychiatric  Institute, the  Pioneers' Homes,                                                                    
and  others,  which  needed to  avoid  total  shut-down  for                                                                    
maintenance  as they  ran 24  hours a  day. The  system gave                                                                    
agencies an objective way to rank projects.                                                                                     
                                                                                                                                
1:58:09 PM                                                                                                                    
                                                                                                                                
Co-Chair  Seaton asked  for information  about the  Facility                                                                    
Condition Index Factor.                                                                                                         
                                                                                                                                
Mr.  Bryan answered  that this  addressed how  much deferred                                                                    
maintenance  was required  over the  value of  the facility.                                                                    
The index would be very high  if there was a lot of deferred                                                                    
maintenance built  up. It gave  an indication of  the health                                                                    
of a given facility relative to other facilities.                                                                               
                                                                                                                                
Vice-Chair  Gara asked  if  the  University ranked  deferred                                                                    
maintenance in the same way.                                                                                                    
                                                                                                                                
Mr.  Bryan answered  that each  agency  had its  own way  to                                                                    
determine  deferred maintenance  needs;  this  was only  the                                                                    
example  of DHSS.  He  moved  to slide  12  and provided  an                                                                    
example of school district major maintenance management:                                                                        
                                                                                                                                
     · Eligibility Requirements: six-year district plan,                                                                        
        fixed asset inventory system, property loss                                                                             
        insurance, preventative maintenance and facility                                                                        
        management program certified by DEED                                                                                    
     · Applications evaluated on several factors resulting                                                                      
        in an overall total points rating                                                                                       
        o Condition survey                                                                                                      
        o District rating                                                                                                       
        o Weighted average age of facility                                                                                      
        o Previous funding through grant program                                                                                
        o Complete planning and design                                                                                          
        o Effectiveness of preventative maintenance program                                                                     
        o Emergency    conditions    and   seriousness    of                                                                    
          life/safety and code conditions                                                                                       
                                                                                                                                
Mr.  Bryan  remarked  DEED  had  requirements  for  deferred                                                                    
maintenance  for  school   districts.  Points  were  awarded                                                                    
according to  the requirements.  Each school  district would                                                                    
have  its  own priority,  however  the  department aimed  at                                                                    
understanding which projects were most urgent.                                                                                  
                                                                                                                                
2:01:47 PM                                                                                                                    
                                                                                                                                
Co-Chair  Seaton  asked  about   the  condition  survey  and                                                                    
surmised  each  district  would  have  to  meet  eligibility                                                                    
requirements to qualify for putting a project forward.                                                                          
                                                                                                                                
Mr. Bryan replied  in the affirmative. He  advanced to slide                                                                    
13 titled "What We've Learned":                                                                                                 
                                                                                                                                
     · Pattern of funding DM backlog coincides with years                                                                       
        of high revenues                                                                                                        
     · The SLA 2010-2014 initiative reversed the trend of                                                                       
        growing DM backlog                                                                                                      
       o Gave entities predictability and confidence                                                                            
     · Without a consistent level of funding, entities                                                                          
        cannot effectively execute planned renewal                                                                              
        o Funding uncertainty leads to emergency only                                                                           
          spending                                                                                                              
     · In a constrained fiscal environment a statewide                                                                          
        approach provides DM attention to highest priority                                                                      
        needs across multiple agencies                                                                                          
                                                                                                                                
Mr.  Bryan  stated  that  uncertainty   in  funding  led  to                                                                    
emergency spending only. As the  amount of funding dwindled,                                                                    
the agencies showed hesitation in spending.                                                                                     
                                                                                                                                
2:03:54 PM                                                                                                                    
                                                                                                                                
Mr.  Bryan  noted  his  portion   of  the  presentation  was                                                                    
concluded.                                                                                                                      
                                                                                                                                
Co-chair  Seaton  suggested  the  committee  hear  questions                                                                    
regarding  the current  portion of  the presentation  before                                                                    
moving forward.                                                                                                                 
                                                                                                                                
Representative Wilson  asked about  the overall  capacity in                                                                    
each  of  the  buildings  and  how  much  of  it  was  being                                                                    
utilized.                                                                                                                       
                                                                                                                                
Mr. Bryan  answered that  he thought  that depended  on each                                                                    
agency's information.                                                                                                           
                                                                                                                                
Representative Wilson  did not understand how  the issue was                                                                    
separate. She gave  the example of the  State Library Museum                                                                    
Archives (SLAM)  building and its  previous location  in the                                                                    
State Office Building. She remarked  that the previous space                                                                    
seemed  to  be  left  unused. She  asked  which  agency  was                                                                    
responsible for that.                                                                                                           
                                                                                                                                
2:05:20 PM                                                                                                                    
                                                                                                                                
Mr.  Bryan replied  the administration  was  trying to  move                                                                    
towards  a  state-wide  facilities maintenance  program.  He                                                                    
agreed that many agencies  were independent. Some facilities                                                                    
were  managed  by  Department  of  Administration  (DOA)  on                                                                    
behalf  of other  agencies, and  there  was quite  a bit  of                                                                    
overlap in  the communication.  Having a  data set  that was                                                                    
all-encompassing was  desired, and  more was on  surveys for                                                                    
departments,  but currently  there was  no aggregate  system                                                                    
that every department used for tracking the information.                                                                        
                                                                                                                                
Representative  Wilson thought  the House  Finance Committee                                                                    
should  have  the  information.   She  asked  if  there  was                                                                    
information   regarding  leases   that  became   state-owned                                                                    
buildings,   and  if   it  was   a  department-by-department                                                                    
consideration.                                                                                                                  
                                                                                                                                
Mr. Bryan responded  that leases were managed  by DOA. Lease                                                                    
costs had been increasing year  after year and there had not                                                                    
been  sustainable  growth.  Departments  had  been  good  at                                                                    
negotiating leases  that did not  cost as  much, eliminating                                                                    
leases  that occupied  lease space  or eliminating  programs                                                                    
that occupied  leased space. The  lease space cost  had been                                                                    
reduced  from  $49.6  million to  $47.1  million  projected,                                                                    
which put  it in line with  FY 12 numbers. In  the DOA there                                                                    
was  a  leasing  allocation,  and  there  would  be  further                                                                    
reductions into FY  18 and beyond to drive  down lease costs                                                                    
for the state.                                                                                                                  
                                                                                                                                
2:08:17 PM                                                                                                                    
                                                                                                                                
Representative  Wilson  asked  Co-chair Seaton  whether  the                                                                    
intent  was  to  further  examine how  many  buildings  were                                                                    
needed. She asked  about the former State  Library space and                                                                    
remarked there  was a  lot of  room that  the state  was not                                                                    
currently utilizing.  She asked  whether those  spaces could                                                                    
be consolidated, and asked whether they were renting.                                                                           
                                                                                                                                
Mr. Bryan  answered that the  8th Floor of the  State Office                                                                    
Building had contained library space  which had moved to the                                                                    
SLAM facility.  The DEED had  a previous building  which had                                                                    
been demolished. The DOA was  working with multiple agencies                                                                    
to  determine which  department  was the  best  fit for  the                                                                    
space. The department was attempting  to reduce the need for                                                                    
lease space and to cancel more leases.                                                                                          
                                                                                                                                
Co-Chair  Seaton remarked  that  they would  ask  DOA for  a                                                                    
report. He  requested Mr.  Bryan to  coordinate with  DOA to                                                                    
get that information to the committee.                                                                                          
                                                                                                                                
2:10:33 PM                                                                                                                    
                                                                                                                                
Vice-Chair  Gara noted  the desire  for a  revenue plan.  He                                                                    
asked if  there was  a list of  buildings and  related costs                                                                    
for  which funding  certain facility  work  would result  in                                                                    
more damage.  He posited  a capital  budget to  address only                                                                    
those buildings which were in most serious disrepair.                                                                           
                                                                                                                                
Mr.  Bryan  replied that  it  was  possible  to put  a  list                                                                    
together.  Departments  had  thus  far been  asked  to  rate                                                                    
buildings in terms  of life, health and safety,  so they had                                                                    
evaluated projects with the scope  only. There was a list by                                                                    
agency and it could be reprioritized.                                                                                           
                                                                                                                                
Vice-Chair  Gara  hoped the  funds  would  be available.  He                                                                    
believed  the Bethel  Office of  Children Services  building                                                                    
was condemned. He asked Mr. Bryan to speak to this.                                                                             
                                                                                                                                
Mr. Bryan  was unaware of  the situation and would  speak to                                                                    
DHSS.                                                                                                                           
                                                                                                                                
Vice-Chair Gara  stated he  would like  to receive  an email                                                                    
regarding the plan for that facility.                                                                                           
                                                                                                                                
Mr. Bryan would follow up immediately.                                                                                          
                                                                                                                                
Representative Pruitt referred to  2,200 owned buildings and                                                                    
to  leased  properties.  He believed  there  currently  were                                                                    
fewer people working  for the state. He  asked whether there                                                                    
had been an evaluation of overall need for space.                                                                               
                                                                                                                                
Mr.  Bryan asked  whether he  was speaking  in terms  of the                                                                    
deferred maintenance backlog.                                                                                                   
                                                                                                                                
Representative  Pruitt  spoke  about lowering  the  cost  of                                                                    
leasing and  opening up opportunities to  invest in deferred                                                                    
maintenance.  He asked  if they  had found  ways to  be more                                                                    
efficient.                                                                                                                      
                                                                                                                                
Mr. Bryan answered  the cost of rent was  an operating cost.                                                                    
Deferred maintenance  was addressed  in the  capital budget.                                                                    
Savings  did not  automatically equate  to an  appropriation                                                                    
for  deferred  maintenance  but creates  an  opportunity  to                                                                    
lower cost or even arrive at  net zero cost. There was not a                                                                    
mechanism  where they  would  see a  lower  lease cost  that                                                                    
translated  to  a  deferred maintenance  project  unless  it                                                                    
could be used in the same  budget. The department had a fund                                                                    
source called  Public Building Fund to  make improvements to                                                                    
the  facilities, and  departments  pay for  it through  DOA.                                                                    
There was  not an  upfront UGF cost  in the  capital budget,                                                                    
but it  was borne by  the operating budget for  the agencies                                                                    
paying rent to DOA.                                                                                                             
                                                                                                                                
2:17:10 PM                                                                                                                    
                                                                                                                                
Co-Chair  Seaton  aimed  at   clarifying  the  question.  He                                                                    
thought Representative  Pruitt was asking  about negotiating                                                                    
contracts for  lowering lease space  and asking  whether the                                                                    
state  was  getting  out  of   lease  space  and  moving  to                                                                    
buildings which it owned.                                                                                                       
                                                                                                                                
Representative  Pruitt  was  trying to  ensure  the  correct                                                                    
amount of space  for the needs of the state.  He referred to                                                                    
a discussion on  reduction in leases. He asked  if they were                                                                    
potentially looking  at situations where some  space may not                                                                    
be  needed. He  wondered  whether  certain costs  associated                                                                    
with a  facility could be  eliminated because  that facility                                                                    
could be sold.                                                                                                                  
                                                                                                                                
Co-Chair  Seaton asked  Mr. Bryan  whether lease  space cost                                                                    
$49.6 and had  been a reduction. The FY 18  had $2.8 million                                                                    
less  appropriated for  leasing. He  asked for  confirmation                                                                    
that those were the figures.                                                                                                    
                                                                                                                                
Mr. Bryan replied  in the affirmative. He detailed  it was a                                                                    
combination of  the two. They  had gotten rid of  leases and                                                                    
programs  and  had   renegotiated  lease  prices.  Mid-lease                                                                    
adjustments had also  been done to lower costs.  All of that                                                                    
activity  lead to  the decrement.  He stated  that currently                                                                    
there  was  overall  savings  of   184,000  square  feet  of                                                                    
property.                                                                                                                       
                                                                                                                                
2:20:34 PM                                                                                                                    
                                                                                                                                
Representative Pruitt  asked if there was  such a separation                                                                    
from  capital budget  items  that  there was  not  a way  to                                                                    
consider  making  reductions  elsewhere. He  explained  that                                                                    
when he  had gone  to the  University of  Alaska, Anchorage,                                                                    
they  had  twice remodeled  the  commons.  He was  concerned                                                                    
there was not proper  management of deferred maintenance. He                                                                    
asked how  the facilities  were being  managed in  the long-                                                                    
term.                                                                                                                           
                                                                                                                                
Mr.  Bryan   did  not  have   experience  working   for  the                                                                    
University and  did not  want to  speak for  it. He  did not                                                                    
believe there  was a "disconnect"  between capital  and what                                                                    
was in  a facility's operations budget.  He underscored that                                                                    
the agencies were independent from  one another and that was                                                                    
something the administration was attempting to address.                                                                         
                                                                                                                                
Representative  Pruitt provided  an example  of a  sprinkler                                                                    
system that  needed to be  replaced. He asked  about keeping                                                                    
the  system running  even  if  it cost  more  than what  was                                                                    
considered preventative  maintenance, and whether  there was                                                                    
maintenance  on those  systems  while  waiting for  deferred                                                                    
maintenance to come through.                                                                                                    
                                                                                                                                
Mr. Bryan answered  that it was a good  example. Such things                                                                    
were  a code  violation if  not maintained,  and that  there                                                                    
were probably facilities where  the deferred maintenance far                                                                    
exceeded  the  value  of buildings.  Determining  whether  a                                                                    
project was worthwhile or whether  there was better value in                                                                    
demolishing was  a major issue  for the department.  He felt                                                                    
that the maintenance money was being spent very well.                                                                           
                                                                                                                                
2:25:26 PM                                                                                                                    
                                                                                                                                
Co-Chair  Seaton reminded  members  that most  of the  small                                                                    
maintenance was  covered. However, larger  maintenance costs                                                                    
would  have  to  be  appropriated  by  the  legislature.  He                                                                    
thought  that there  was still  some money  in the  deferred                                                                    
maintenance budget  but that  it would  be discussed  in the                                                                    
capital budget hearings. He spoke  to a comprehensive fiscal                                                                    
plan.   He  posed   the   question   about  doing   deferred                                                                    
maintenance when the state had such a large deficit.                                                                            
                                                                                                                                
2:27:08 PM                                                                                                                    
                                                                                                                                
Representative  Wilson  asked  if   the  department  or  the                                                                    
legislature decided to sell assets.                                                                                             
                                                                                                                                
Co-Chair Seaton would get the answer.                                                                                           
                                                                                                                                
Vice-Chair Gara did  not know if it was necessary  to have a                                                                    
hearing  on  the  topic.  He  thought it  would  be  a  good                                                                    
question for the commissioner of DOA.                                                                                           
                                                                                                                                
2:28:21 PM                                                                                                                    
                                                                                                                                
Representative Wilson confirmed that  she was not asking for                                                                    
a separate hearing. She asked  that when the legislature was                                                                    
looking at deferred maintenance  monies. She wondering if it                                                                    
was  smarter  to  have  a  lease or  to  pay  into  deferred                                                                    
maintenance. She  asked who was  responsible for  making the                                                                    
call.                                                                                                                           
                                                                                                                                
Co-Chair  Seaton  thought  that consolidation  and  lowering                                                                    
leasing costs were contributing and they would talk to DOA.                                                                     
                                                                                                                                
2:30:19 PM                                                                                                                    
                                                                                                                                
MARK   DAVIS,   DIRECTOR,  STATEWIDE   FACILITIES   SERVICES                                                                    
DIVISION,   DEPARTMENT   OF    TRANSPORTATION   AND   PUBLIC                                                                    
FACILITIES (via  teleconference), spoke to slide  14 related                                                                    
to statewide facilities maintenance:                                                                                            
                                                                                                                                
     Timeline:                                                                                                                  
     2015 - EFMAC* Creation & Recommendations                                                                                   
     2016 - State Facilities Council Formed, Centralization                                                                     
     Analysis Recommendation & Approval                                                                                         
     2017 - Determination of lead agency for Centralized                                                                        
     Facilities Services                                                                                                        
        · Advantages    to   centralized    operations   and                                                                    
          maintenance of state facilities                                                                                       
               o Enterprise approach                                                                                            
               o One lead agency (DOT&PF)                                                                                       
               o Economies of scale                                                                                             
               o Commonality of processes, procedures                                                                           
               o Consolidate contracts                                                                                          
               o Juneau Pilot - four waves thru 2017                                                                            
                  (approximately 20 buildings) followed by                                                                      
                  expansion statewide                                                                                           
                                                                                                                                
Mr.  Davis relayed  that the  division  was working  towards                                                                    
centralizing  facilities  maintenance  across  most  of  the                                                                    
departments. The  effort had  begun in  2017 with  the EFMAC                                                                    
[Executive Facilities Maintenance  Advisory Committee]. This                                                                    
developed into  a facilities council and  subcommittees. The                                                                    
body had  done a  great deal of  work towards  analyzing the                                                                    
potential advantage  to centralizing  maintenance facilities                                                                    
across the  state. It was  determined that DOT would  be the                                                                    
central  agency for  that project,  beginning  with a  pilot                                                                    
program  involving around  20  buildings  around Juneau.  He                                                                    
thought taking an enterprise  approach, finding economies of                                                                    
scale, consolidating  contracts were part of  the first wave                                                                    
of the Juneau pilot, the  governance body would be consulted                                                                    
for key policy decisions.                                                                                                       
                                                                                                                                
2:33:14 PM                                                                                                                    
                                                                                                                                
Mr.  Davis  noted that  the  scope  of  the effort  did  not                                                                    
include  leasing  activity,  which remained  with  DOA.  The                                                                    
issue  of consolidating  and perhaps  closing and  no longer                                                                    
renting was also outside of the project's scope.                                                                                
                                                                                                                                
                                                                                                                                
Mr. Davis  advanced to slide 15  titled "Opportunities Going                                                                    
Forward":                                                                                                                       
                                                                                                                                
        · Opportunity      to      comprehensively      plan                                                                    
          recapitalization of State buildings                                                                                   
        · Starts with inspections to develop a Facilities                                                                       
          Condition Index (FCI)                                                                                                 
          o Provide holistic view of all state building                                                                         
             assets                                                                                                             
          o Baseline health of our assets; prioritize                                                                           
             deferred maintenance needs                                                                                         
          o Analyze    backlog    of    existing    deferred                                                                    
             maintenance items in relation to actual needs                                                                      
        · Develop a framework built on best practices:                                                                          
          processes, procedures; provide data/metrics to                                                                        
          measure progress                                                                                                      
        · Implement a common Computerized Maintenance                                                                           
          Management System                                                                                                     
        · Assess risk and prioritize work                                                                                       
        · Strive for a systematic funding program for major                                                                     
          maintenance and system life cycle replacement-                                                                        
          ensure consistency, predictability                                                                                    
                                                                                                                                
Mr. Davis and spoke to  the Facilities Condition Index. This                                                                    
element  would   be  very   important  in   determining  the                                                                    
condition of  buildings across the  state. He was  not aware                                                                    
of  another department  that had  done that.  The department                                                                    
was aimed  at understanding  where the  problem set  was and                                                                    
how to  prioritize funding. Going  forward it would  be used                                                                    
to   learn   lessons,   adjust  procedures,   and   increase                                                                    
efficiency.                                                                                                                     
                                                                                                                                
2:35:18 PM                                                                                                                    
                                                                                                                                
Mr.  Davis addressed  slide 16  and provided  best in  class                                                                    
state examples:                                                                                                                 
                                                                                                                                
        · Utah - Division of Facilities Construction and                                                                        
          Management                                                                                                            
          o Provides    centralized    facilities    related                                                                    
             services - maintenance, operations, design and                                                                     
            construction to 200 plus buildings.                                                                                 
          o Facilities Conditions Indices (FCIs) renewed                                                                        
             every 5 years per facility.                                                                                        
          o A computerized maintenance management system                                                                        
             used to manage their portfolio, reactive and                                                                       
             preventative maintenance and real estate                                                                           
             management.                                                                                                        
          o Deferred maintenance funding appropriated into                                                                      
             the annual budget as percentage of the value of                                                                    
             all state facilities                                                                                               
          o Key Performance Indicators are measured - FCIs,                                                                     
             maintenance costs per sq. ft.                                                                                      
        · Texas has benchmarked success as well                                                                                 
                                                                                                                                
Mr. Davis  provided Utah as  an example. The state  had used                                                                    
consolidated maintenance  since the  mid-1980s. Most  of the                                                                    
state's  policies in  this area  were  in statute.  Deferred                                                                    
maintenance funding was  the percentage of the  value of the                                                                    
property and was funded  annually and therefore predictable.                                                                    
He turned to slide 17 titled "The Long View."                                                                                   
                                                                                                                                
        · Build on Successes of Juneau Pilot                                                                                    
        · Advance in waves to bring in all state facilities                                                                     
        · Results-based     reporting      to     investors,                                                                    
          stakeholders, public                                                                                                  
        · Continuous improvement culture                                                                                        
        · Best stewardship of public funds rooted in                                                                            
          consistency and predictability                                                                                        
                                                                                                                                
Mr.  Davis  indicated they  were  looking  to build  on  the                                                                    
successes of  the Juneau  pilot. The aim  was to  advance in                                                                    
waves across the  state. A key component was  putting all of                                                                    
the maintenance  in one database.  Some departments  did not                                                                    
have a maintenance management  system. Others had inadequate                                                                    
systems.  For  the  state  to  implement  the  concept,  the                                                                    
computerized management system would be necessary.                                                                              
                                                                                                                                
2:37:49 PM                                                                                                                    
                                                                                                                                
Co-Chair  Seaton  referred  to   a  question  about  when  a                                                                    
facility  was  no longer  worth  the  major maintenance.  He                                                                    
asked if  there was a  cutoff where the facility  index says                                                                    
to abandon maintenance.                                                                                                         
                                                                                                                                
Mr.  Davis answered  that once  the index  was completed,  a                                                                    
decision like  that would be  brought before  the facilities                                                                    
council  and  perhaps  before EFMAC  for  review.  It  would                                                                    
require a lot  of planning to move whatever  function was in                                                                    
a given building  and to ensure there  was available capital                                                                    
funding.                                                                                                                        
                                                                                                                                
Co-Chair Seaton  pointed to the  example related to  Utah on                                                                    
slide 16. He asked whether,  if there was not some dedicated                                                                    
funding  going  forward due  to  deficits,  the system  gave                                                                    
information but did not actually  put the state on a pathway                                                                    
to getting the repairs done.                                                                                                    
                                                                                                                                
Mr.  Davis believed  that  once  operations commenced,  they                                                                    
would be able to determine  the need. He detailed that 2,000                                                                    
or so  buildings would not require  maintenance, and storage                                                                    
sheds  or   other  small  buildings  that   would  not  have                                                                    
significant deferred  maintenance. He  thought there  may be                                                                    
old buildings  for which the department  was underestimating                                                                    
the  amount of  deferred  maintenance required.  He was  not                                                                    
currently able to answer the  amount of deferred maintenance                                                                    
that the department needed. It  would be managed by priority                                                                    
based on the building condition.                                                                                                
                                                                                                                                
Co-Chair Seaton asked if there  was a list of buildings that                                                                    
were under 1,000 square feet and related cost estimates.                                                                        
                                                                                                                                
2:42:00 PM                                                                                                                    
                                                                                                                                
Mr. Davis  did not believe  the list had been  compiled, but                                                                    
the department would do so and would follow up.                                                                                 
                                                                                                                                
Co-Chair Seaton  asked if there  were costs  associated with                                                                    
the Juneau pilot project.                                                                                                       
                                                                                                                                
Mr.  Davis answered  the primary  cost was  the computerized                                                                    
maintenance   program,  with   estimates   of  $350,000   to                                                                    
$400,000. The  department was currently  in the  request for                                                                    
proposal and funding stage.                                                                                                     
                                                                                                                                
Co-Chair Seaton  asked if  the amount  was the  software and                                                                    
implementation component.                                                                                                       
                                                                                                                                
Mr. Davis replied in the affirmative.                                                                                           
                                                                                                                                
Vice-Chair Gara  asked whether  there buildings  that needed                                                                    
to be maintained and the  current condition was costing more                                                                    
and  asked  whether  there  was   an  assessment  of  damage                                                                    
currently occurring.                                                                                                            
                                                                                                                                
Mr. Davis  replied that  he could  not answer  the question.                                                                    
They  were at  the  beginning of  implementing the  program,                                                                    
initially with DOA and DOT.  He imagined there could be some                                                                    
buildings in that category but could not currently answer.                                                                      
                                                                                                                                
2:44:41 PM                                                                                                                    
                                                                                                                                
Co-Chair  Seaton  referred to  slide  18  and asked  if  the                                                                    
governor's 10-year plan was looking  at the pilot program or                                                                    
to the state-wide deferred maintenance plan.                                                                                    
                                                                                                                                
Mr.  Bryan replied  that slide  18  was not  related to  Mr.                                                                    
Davis's  portion.  He  clarified  that there  was  an  early                                                                    
estimate of $70 million to  $90 million between school major                                                                    
maintenance   and  entity   deferred  maintenance.   It  was                                                                    
independent of statewide facility maintenance.                                                                                  
                                                                                                                                
Co-Chair  Seaton  observed  it   was  obvious  there  was  a                                                                    
deferred   maintenance  problem   in   Alaska.  There   were                                                                    
considerations  that needed  to be  made and  if the  budget                                                                    
deficit continued  there would  not be funding  for deferred                                                                    
maintenance.                                                                                                                    
                                                                                                                                
Co-Chair  Seaton addressed  the schedule  for the  following                                                                    
day.                                                                                                                            
                                                                                                                                
Representative Wilson  asked which  bills the  committee was                                                                    
hearing public comment on.                                                                                                      
                                                                                                                                
Co-Chair Seaton  noted that if  the bill had not  been heard                                                                    
there would not be public comment.                                                                                              
                                                                                                                                
Representative  Wilson   noted  it   was  not   listed.  She                                                                    
requested the information for the entire week.                                                                                  
                                                                                                                                
ADJOURNMENT                                                                                                                   
                                                                                                                                
2:49:00 PM                                                                                                                    
                                                                                                                                
The meeting was adjourned at 2:48 p.m.                                                                                          

Document Name Date/Time Subjects
Deferred Maintenance Overview HFIN 5.8.17.pdf HFIN 5/8/2017 1:30:00 PM
HFIN Fiscal Policy
OMB Response- House Finance Committee on Deferred Maintenance.pdf HFIN 5/8/2017 1:30:00 PM