A report by the Port Authority of New York and New Jersey said the budget may be increased to finish work on a memorial, office towers and transportation facility at Ground Zero.

The Port Authority said it wants to organize a governing board of representatives from all groups taking part in the $15 billion reconstruction project at the 16-acre location.

Members of the group would include developer Larry A. Silverstein, the memorial foundation, the Metropolitan Transportation Authority, Goldman Sachs and Brookfield Properties, The New York Times reported Monday.

The current construction time-line and budget are "unrealistic," due to 15 pending complications, documents indicate.

The newspaper said crews must consider that each project's individual time-line impacts other reconstruction efforts at and near the site.