S. Hrg. 104-562 H.R. 2108-THE DISTRICT OF COLUMBIA CONVEN- TION CENTER AND SPORTS ARENA AUTHOR- IZATION ACT OF 1995 I 4. G 74/9: S. HRG. 104-562 :iiNG I.R. 2108-The District of Colunbia... ^^^ SUBCOMMITTEE ON OA^RSIGHT OF GO^^RNMENT MANAGEMENT AND THE DISTRICT OP COLUMBIA OFTHE COMMITTEE ON GOVERNMENTAL AFFAIRS UNITED STATES SENATE ONE HUNDRED FOURTH CONGRESS FIRST SESSION ON H.R. 2108 TO PERMIT THE WASHINGTON CONVENTION CENTER AUTHORITY TO EXPEND REVENUES FOR THE OPERATION AND MAINTENANCE OF THE EXISTING WASHINGTON CONVENTION CENTER AND FOR PRECONSTRUCTION ACTIVITIES RELATING TO A NEW CONVENTION CENTER IN THE DISTRICT OF COLUMBIA, TO PERMIT A DESIGNATED AUTHORITY OF THE DISTRICT OF COLUMBIA TO BORROW FUNDS FOR THE PRECONSTRUCTION ACTIVITIES RELATING TO A SPORTS ARENA IN THE DISTRICT OF COLUMBIA AND TO PERMIT CERTAIN REVENUES TO BE PLEDGED AS SECURITY FOR THE BORROWING OF SUCH FUNDS, AND FOR OTHER PURPOSES. AUGUST 9, 1995 Printed for the use ofthe Committee on Governmental Affairs Oct "^ lf^^c-^^ U.S. GOVERNMENTPRINTING OFFICE WASHINGTON : 1996 ForsalebytheU.S.GoveminentPrintingOtTice SuperintendentofDocuments.CongressionalSalesOffice.Washington.DC 20402 ISBN 0-16-053490-9 S. Hrg. 104-562 H.R. 2108-THE DISTRICT OF COLUMBIA CONVEN- TION CENTER AND SPORTS ARENA AUTHOR- IZATION ACT OF 1995 4, G 74/9; S. HRG. 104-562 RING R. 2108-The District of Colunbia... ^^^ SUBCOMMITTEE ON OAHERSIGHT OP GO\TERNMENT MANAGEMENT AND THE DISTRICT OF COLUMBIA OFTHE COMMITTEE ON GOVERNMENTAL AFFAIRS UNITED STATES SENATE ONE HUNDRED FOURTH CONGRESS FIRST SESSION ON H.R. 2108 TO PERMIT THE WASHINGTON CONVENTION CENTER AUTHORITY TO EXPEND REVENUES FOR THE OPERATION AND MAINTENANCE OF THE EXISTING WASHINGTON CONVENTION CENTER AND FOR PRECONSTRUCTION ACTIVITIES RELATING TO A NEW CONVENTION CENTER IN THE DISTRICT OF COLUMBIA, TO PERMIT A DESIGNATED AUTHORITY OF THE DISTRICT OF COLUMBIA TO BORROW FUNDS FOR THE PRECONSTRUCTION ACTIVITIES RELATING TO A SPORTS ARENA IN THE DISTRICT OF COLUMBIA AND TO PERMIT CERTAIN REVENUES TO BE PLEDGED AS SECURITY FOR THE BORROWING OF SUCH FUNDS, AND FOR OTHER PURPOSES. AUGUST 9, 1995 Printed for the use ofthe Committee on Governmental Affairs /Cr.? U.S. GOVERNMENT PRINTING OFFICE WASHINGTON : 1996 ForsalebytheU.S.GovernmentPrintingOtTice SuperintendentofDocuments.CongressionalSalesOffice.Washington.DC 20402 ISBN 0-16-053490-9 COMMITTEE ON GOVERNMENTAL AFFAIRS WILLIAMV, ROTH,Jr., Delaware, Chairman TEDSTEVENS, Alaska JOHN GLENN, Ohio WILLIAMS. COHEN,Maine SAM NUNN, Georgia FREDTHOMPSON,Tennessee CARL LEVIN, Michigan THADCOCHRAN,Mississippi DAVIDPRYOR,Arkansas CHARLES E. GRASSLEY, Iowa JOSEPH I. LIEBERMAN, Connecticut JOHNMcCAIN,Arizona DANIEL K. AKAKA,Hawaii BOB SMITH,NewHampshire BYRONL. DORGAN, NorthDakota FranklinG. Polk,StaffDirectorandChiefCounsel LeonardWeiss,MinorityStaffDirector MichalSue Prosser,ChiefClerk SUBCOMMITTEE ON OVERSIGHT OF GOVERNMENT MANAGEMENT AND THE DISTRICT OF COLUMBIA WILLIAM S. COHEN,Maine, Chairman FREDTHOMPSON,Tennessee CARL LEVIN, Michigan THADCOCHRAN, Mississippi DAVID PRYOR,Arkansas CHARLES E. GRASSLEY, Iowa JOSEPH I. LIEBERMAN, Connecticut JOHNMcCAIN, Arizona DANIEL K. AKAKA, Hawaii Kim Corthell,StaffDirector LindaJ. Gustitus,MinorityStaffDirectorandChiefCounselto theMinority FrankiedeVergie,ChiefClerk (II) CONTENTS Page Openingstatement: SenatorCohen 1 Preparedstatement: SenatorLevin 23 WITNESSES Wednesday, August 9, 1995 Gregory M. Holloway, Director, Civil Audits, Accounting and Information Management Division, U.S. General Accounting Office, accompanied by Charles W. Culkin, Jr., Assistant Director, Civil Audits, and Richard T. Cambosos,SeniorAttorney,Accountingand Information ManagementDivi- sion 3 Merrick Malone, Assistant City Administrator for Economic Development, District ofColumbia, accompanied by James E. Kerr, Chairperson, Arena Task Force and Claude Bailey, Office ofCorporation Counsel for the Dis- trictofColumbia 8 MichelleD. Bernard, Chairwoman, DistrictofColumbiaRedevelopmentLand Agency 10 Patricia Brooks Smith, Senior Vice President, NationsBank, accompanied by DavidRyder,VicePresident,CrestarBank 20 Alphabetical List of Witnesses Bernard,MichelleD.: Testimony 10 Preparedstatement 57 Holloway,GregoryM.: Testimony 3 Preparedstatement 24 Malone, Merrick: Testimony 8 Preparedstatement 45 Smith,PatriciaBrooks: Testimony 20 Preparedstatement 64 APPENDIX Preparedstatementsofwitnessesinorderofappearance 24 PreparedstatementofDCCouncilChairmanDavidA. Clarke 68 Statement ofthe District ofColumbia Financial Responsibility and Manage- mentAssistanceAuthority 76 LetatnetrCdiattyeAddmAiungi.st1r0,at1o9r9f5ortoEcSoennoamtiocrDCeovheelnopfmernotm/DMierreicctkorT,.DMaHlCoDne, Assist- 79 LetterdatedAug.9, 1995toSenatorCohenfromSallyBerk,DCPreservation League 81 CPC/CitizensPlanningCoalitionResolution 83 Letter dated Aug. 9, 1995 to Senator Cohen from Kathryn A. Eckles, Presi- dent,ResidentialActionCoalition 86 StatementoftheCommitteeof100ontheFederalCity 88 (III) H.R. 2108—THE DISTRICT OF COLUMBIA CON- VENTION CENTER AND SPORTS ARENA AU- THORIZATION ACT OF 1995 WEDNESDAY, AUGUST 9, 1995 U.S. Senate, Subcommittee on Oversight of Government Management, and the District of Columbia, Committee on GovernmentalAffairs, Washington, DC. The Committee met, pursuant to notice, at 2:04 p.m., in room SD-342, Dirksen Senate Office Building, Hon. William S. Cohen, Chairman ofthe Subcommittee, presiding. Present: Senator Cohen. StaffPresent: Kim Corthell, StaffDirector; Paulina Collins, Pro- fessional Staff Member; Frankie de Vergie, Chief Clerk; Andrea Gerber, Staff Assistant; Scott Parr, Minority Legislative Fellow; Andrea Bier, Majority Intern; Kathy Dunn, Minority Intern. OPENINGSTATEMENTOF SENATORCOHEN Senator COHEN. The Committee will come to order. Welcome. The subject ofthis afternoon's hearing is H.R. 2108. This legisla- tion, which passed the House of Representatives last Friday, has two purposes. The first is to authorize the District of Columbia to pledge revenues generated by the sports arena tax as security to borrow funds. These funds are to be used to pay for pre-construc- tion activities, mostly site acquisition and preparation for the new arena to be built in the Gallery Place area. Over the next several years, revenue from the new arena tax, which has been imposed on the District's business community, will be used to repay the debt. The second purpose is to authorize the Washington Convention Center Authority to spend certain revenues for operating the cur- rent convention center and for costs associated with developing plans for the new convention center. These revenues also are gen- erated by a special tax, in this instance, a special tax imposed on the District's hotels and restaurants. Both of these projects are considered critically important to the future economic stability and growth of the District. They, there- fore, deserve more than a perfunctory review bythe Senate. The financial recovery of the Nation's capital is important not only to those who live in the District and the surrounding areas, but to all Americans. A new convention center and sports arena will help to revitalize areas ofthe city, generate badly needed reve- (1) nue for the District, and create new businesses and jobs for the residents ofthe District and surrounding communities. While the existing convention center is httle more than a decade old—personally I fi—nd it ironic that we are already talking about building a new one it is now too small to accommodate the de- mands oftoday's larger and more profitable conventions and trade shows. As a result, convention-related revenue is dropping, to the detriment ofboth the District Government and the area businesses. Like the proposed sports arena, a new convention center is going to help stimulate the local economy, enhance civic pride, and pro- mote tourism. As a result, both projects have broad-based support amongthe local citizens and businesses. I should note, however, that since the scheduling ofthis hearing, the Subcommittee has heard from a number ofindividuals and or- ganizations who have concerns regarding the sports arena, many of whom oppose the construction at the Gallery Place site. I have in- dicated to them, and will say here, that this hearing is not the proper forum for those who oppose, for example, construction ofthe arena because of concerns regarding historic preservation or dis- agree with the taxes which have been imposed on the District busi- nesses tohelp pay for these projects. It is also beyond the scope of this hearing to resolve any con- troversies surrounding the process by which the agreement for the new arena has been reached. These are matters for the citizens of the District and their elected representatives to decide and for the appropriate regulatory andjudicial forums to resolve. I should also point out that any action by Congress on this bill before us should not be construed as interferingwith or in anyway affecting the administrative or legal rights of any individual or or- ganization pertaining to the District's decisions on the arena or convention center. Just as we do not take up these issues, we can- not preclude or foreclose those issues being brought in the appro- priate forum. The responsibility for the Subcommittee and, ultimately, the Congress is to examine the financial soundness of the District's plans for spending these special tax revenues. In light of the Dis- trict's current financial crisis, there is an even greater obligation to ensure the District is proceedingin a fiscallyresponsible manner before the Congress approves the pendinglegislation. We are first going to hear this afternoon from representatives of GAO, who have examined the methodology used for the revenue projections of the dedicated taxes for both projects, and has re- viewed the documentation supporting the estimates of predevelopment costs and the financing for the sports arena project. Then we will hear from a panel of representatives of the District Government who can discuss the details of the proposed projects, and finally, we will hear from the representatives of the banking institutions which have agreed to provide financingfor the District's costs ofthe arena project. Senator COHEN. Mr. Holloway, you may proceed. I will have some questions for all of the witnesses, but please proceed as you see fit. I am hoping we will not be interrupted too many times this afternoon by votes on the floor, but ifyou can summarize your tes- timony, your written statements will be included in the record in full. I might add, by way of at least parenthetical expression, those who have expressed opposition to the construction of the facilities will also have the opportunity to submit their statements for the record. Those concerns, however, will not be taken up during the course ofthese proceedings. Mr. Holloway? TESTIMONY OF GREGORY M. HOLLOWAY,i DIRECTOR, CIVIL AUDITS,ACCOUNTINGAND INFORMATIONMANAGEMENTDI- VISION, U.S. GENERALACCOUNTING OFFICE, ACCOMPANIED BY CHARLES W. CULKIN, JR., ASSISTANT DIRECTOR, CIVIL AUDITS, AND RICHARD T. CAMBOSOS, SENIOR ATTORNEY, ACCOUNTINGANDINFORMATIONMANAGEMENTDIVISION Mr. Holloway. Thank you. Chairman Cohen. I will be briefand give wayto Q and A. I have with me today Charles Culkin, assistant director of my staff, who is responsible for the sports arena work, as well as Rich Cambosos, from our office of general counsel, who I might add is also a District resident and very engaged in some of these issues. We are here today to give the status of the arena project, and I want to mention a few things and then give way to any questions thatyou might have. Basically, the primary cost drivers ofthe project are the land ac- quisition, estimated at around $30 million and it is based on cer- tified appraisals, and the cost associated with the Metrorail connec- tion, which currently is estimated at $13.5 million. That cost in particular is subjected to the possibility of getting a grant that would lower the District's needs for additional funding from the projected $53 million down to about $42 million. From ever3rthing that we can see, based on the costs that have been projected, they appear to be reasonable, and the means offi- nancing appears to be fiscally responsible in being able to meet the funding needs ofthis project. I do not want to belabor the discussion, other than to say that from every indication we have the estimated project costs are rea- sonable. Recognizing this is at a very early stage and that costs as- sociated with any construction project tend to change as you move further into it. For example, in the case of the Metrorail connec- tion, the results ofan environmental study could change the Metro- rail connection costs. It should be noted that the grant being sought is a $15 million grant, so that ifthe costs were to increase above the projected $13.5 milhon, there would be at least $1.5 mil- lion ofadditional funds to coverthat cost. That is basically the status of where we stand. They have re- ceived revenues associated with the arena tax to the tune ofabout $8 million already, which would suggest that clearly the proposed tax, if enacted, and being allowed to be used for this purpose, would be able to service the debt payment ofthe proposed financ- ing. And as we understand it, the District is currently looking at 'ThepreparedstatementofMr.Hollowayappearsonpage24. alternative proposals to even improve the financing arrangement that they alreadyhave. That basically is where we stand, and at this time, I would like to give wayto any questions thatyou mighthave. Senator Cohen. Thankyou. Mr. Holloway, you indicated that they have collected $8 million so far assuming the tax is allowed to stand. They have already passed the tax, have they not, as ofJanuary? Mr. Holloway. That is correct? Senator COHEN. The arena tax is expected to raise $9 million a year, is that correct? Mr. Holloway. Thatis correct. Senator COHEN. Would these numbers seem to indicate—that they are ahead ofthe projection? Ifyou have $8 million now is that a fiscal year or calendaryear Mr. Holloway. I think it is about right on the projection. I be- lieve the fiscal year is September 30th, so you only have 1 month left, and I believe the original projection was around $9.4 million thatwould be gained; I think it is pretty much on target. Senator COHEN. OK. Is GAO satisfied or confident that the reve- nues that have been generated from this tax as well as the res- taurant and hotel tax are properly escrowed? In GAO's opinion, are these revenues separate from the District's general fund accounts? Mr. Holloway. As we understand it, they are properly escrowed. Senator COHEN. Any doubt about it, Mr. Culkin? Mr. Culkin. No. Senator COHEN. Am I correct in assuming that the $9 million in revenue that is going to be generated through this tax can be used only for the service ofthe debt on the loan that is being offered by the bank consortium? Can it be spent on anything else other than to paythe loan? Mr. Holloway. I believe some of the costs associated with the portion that has already been collected are expected to be used to pay for some of the predevelopment costs that have already been incurred. So I guess the short answer to that is that the taxes are expected to be committed toward costs associated with this arena project. Rich, do you want to add anything to that in terms ofany legal restraints? Mr. Cambosos. No. Costs must be related to the project, includ- ing some costs that have already been incurred that will be reim- bursed from the taxes that have been collected. Senator Cohen. We will getto the banks later, but I assume that this is satisfactory to the banks? The money that is being gen- erated is not to be used exclusively for the repayment ofthe loan, but for some predevelopment costs? Mr. Culkin. The banks have laid out very tight requirements in their commitment letter to the city, stating how these funds are going to be used. The funds can only be used for the arena project. As a matter offact, the funds are going to a lock box, and it is a lock box at one ofthe banks that is part ofthe financing syndica- tion. Senator COHEN. I understand, but it is one thing to repay the loan, and another to use revenues for expenses surrounding the