The lesson
Put the whole financing in one sources-and-uses table and state the funding gap yourself instead of leaving it for the reader to find.
The cover is a rendering of the building in daylight, with bikes, a car and pedestrians, under a pale band reading "EUGENE STEAM PLANT REDEVELOPMENT", with "City of Eugene", "Development Proposal" and "April 9, 2019" stacked at the lower right. Inside, one table sets out $26.4M of sources and uses with the gap named, plus a month-by-month timeline.
Don't copy the figures or the building rendering. Keep a place-specific image on the cover, one table showing the full money picture and a dated timeline.