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HomeMy WebLinkAboutAgenda - 02-21-2013 - Attachment 7A13 Attachment 7A FEBRURARY 5th, 2012 TO: BOARD of COUNTY COMMISSIONERS - Chair Pelissier, Vice Chair Hemrninger, Commissioners Foushee, Gordon, McKee, Jacobs and Yuhasz FROM: Frank W. Clifton, Jr., County Manager SUBJECT: WHITTED BUILDING FORMER LIBRARY SPACE REUSES ANALYSIS -- BACKGROUND INFORMATION In 2010 once the County moved its northern library operations to the new facility located off Margret Street in Downtown Hillsborough the former library space in the Whitted Building became vacant. Different approaches and considerations have been given to reuse of that space along with space in the Whitted Building that formerly housed the County's Department of Social Services. Discussions with the orange County School Board moved toward their evaluation of using'all' of the vacated space in the Whitted Building for their use. However, State budget cuts led to a realization that much of the need for the use of that space and the cost of renovation was negated by dour budget projections at the State level. (Note: the school system has since entered into an agreement with the County to reuse the former EMS headquarters located at New Hope and Highway 85.) In the ensuing period, other County budget decisions and departmental needs for public services led to actions that reused portions of the Whitted Building and incurred building modifications and improvements to the County. The Community Development Department moved from its former offices on the ground Boor to a location formerly housing DSS on an upper floor in the newer wing of the facility. Additionally, based upon budget driven operational considerations, the Health Department expanded the Hillsborough dental clinic operations along with an extensive remodeling of the lower and second floor Whitted Building space for Health Department needs. During this process, improvements and building safety issues were addressed (inclusive of a fire sprinkler system installation). The building is structurally sound. However, some uses may create added construction considerations associated with needs (Le. major renovation to restroorn facilities based on public attendance volumes). NON COUNTY USE REQUEST — Orange County Cultural Center A private (yet to be incorporated) non- profit group gained a $10,000 seed money grant from the Town of Hillsborough to pursue a private /public partnership to develop a proposal for the reuse of the former Whitted Building library space as a community cultural facility. The group sought assistance from an architect and worked on a plan /proposal for it to become an active programmer of artistic and cultural activities within the Whitted Building (1F, the County would make the space available). The group's "Strategic Business Plan" (9/8/11) is Attachment 1 to this memorandum. 14- Based upon direction from the County Commission, County Staff analyzed these issues from several important perspectives including but not limited to: A. Compatibility with existing and future County uses /operations the proposed Cultural Center would create. B. Financial viability of a non - profit group given control of the facility would have to meet various aspects of creating a sustainable operation NOT requiring an on -going subsidy from the County. C. Viability and receptiveness of the Town to become a participant in this venture and assume some level of financial commitment and operational liability for the facility. D. The cost and type of modifications needed to bring the building into compliance with federal, state and local codes required for activities and who /how those obligations would be met E. The potential need for the County to use this space for governmental purposes in the future. Without attempting to (within this memo) summarize each of the relevant points within the group's strategic business plan, it is our opinion that as proposed it is unlikely this group (regardless of how well intentioned their efforts) will successfully achieve their desired outcomes. The business plan depends heavily on assumptions that are likely to be difficult to accomplish. There are elements of the planned uses for the facility that would /could conflict with existing county operational functions at the facility. More importantly, the County has heavily invested in this asset and potential conflicts of use could place that investment at risk. (These issues have been discussed with the group's leadership and they fully understand our concerns.) TOWN INVOLVEMENT -- Staff level discussions Overcoming some of the financial and liability issues that the non - profit group's operational control of the former Whitted Library space presented was attempted to be addressed via some formalized agreement with the Town of Hillsborough. Although no formal discussions have occurred among the elected leadership of the Town and County on these issues, town and county staffs have discussed various elements (subject to elected leaders formal actions at some point in the future). ISSUES: It is apparent the Town does not have available financial resources it would be willing to allocate toward this project beyond the $10,000 seed money given the non - profit group that brought forth the proposal. There seems to be some doubt that the Town wants to accept any formalized responsibility or liability for the operational control of the allocated space. (Reminder, the initial assumption under which this process went forward was that the Town and County would enter into a formal agreement where the space would be leased to the Town under certain terms and the Town would then allocate use of the space to this non - profit (or another) BUT the Town would retain the liability and responsibility for the condition, use and upkeep within the walls of the space allocated via the terms of the County/Town agreement. At the Staff level, that does not appear to be a realistic option. 15 In addition and possibly more relevant, it appears the Town's parking regulations present a significant hurdle to the proposed uses envisioned by the non - profit group's efforts to develop a cultural center. The activities and participation generation sought by the non - profit and currently available parking spaces are in conflict and prevent occupancy as envisioned by the group. Suggestions to reduce County related activities or convert existing recreational fields into parking areas does not seem to mesh with the County's continued use of the facility and /or the visions held by the cultural center supporters. (Note: This effort initially gained financial support from the Town. if parking restrictions severely limit or eliminate most of the intended uses proposed in conceptual plans for the development of a cultural center at the Whitted site then the agreement between the Town and County is moot.) FURTHER CONSIDERATIONS —A possible alternative Assuming that the Town and County `might' (in some agreeable manner) find a way to either mitigate or overcome the hurdle presented by the Town's parking regulations, there may be a_ method to address several community needs while addressing a continuing County need. (The following example is offered as an option and not aimed settle all elements of the issues discussed, but rather to stake out how the County, Town and non - profit might move forward to address common interests.) A. The County has a planned enhancement to the Link Center to construct a fixed meeting space for the BOCC and other community meeting needs including Grange County Schools along with the Town of Hillsborough. That project, although designed is on hold due primarily to the associated cost of upgrading restrooms to meet code requirements for large public gatherings. B. That project could be shifted to the Whitted Building former library space and accommodate many of the previous needs for public meeting space along with most of the activities imagined by the non -profit cultural center group. (We have discussed with the group's organizers this possibility and found them acceptable to pursuing the concept.) C. Shifting the public meeting facility (and associated expense) to the Whitted Building allows basic enhancements to move forward that would (with additional contributions by the nonprofit for up fits) allow multiple private and public uses of the former library space. The County's Tourism Staff prepared a brief report (Attachment 2) which outlines some uses /users and highlights how they might be involved in marketing the space. (The Town and County must still address the parking issues if any of the proposed uses outlined above are to move forward.) D. If this project moves forward, the County would have options it could choose associated with the Annex Building next to the Link Center. That building now houses only the Board of Elections (4 employees and equipment storage). Those functions could be relocated to former space in the Link Center planned for the meeting room. The area has ample space to accommodate all of their needs. Modifications to the building would be less expensive than the meeting space. Restrooms would not require the same upgrades as the meeting space option. E. If we proceed as proposed in D above, we could decide on how to deal with the Annex Building. (1) An option may be to deconstruct the building. If done, this option would assist in addressing parking issues with the Town in two manners. one the reduction in building floor space would reduce parking demand (town rules are based on building square footage). The 1958 building has one usable floor (main), some attic storage and a lower level that sits below flood level. 16 Removing the building reduces parking demand by 1 space per each 300 SF of building space and allows the area of the building to be expanded parking for the courts and Link Center. (2) A second option could be to move some other governmental function to that space (state or county). This option further negatively impacts parking issues downtown. (3). Third, we can continue the current activities as they are. However, the building space far exceeds the needs of the Board of Elections with utility and maintenance costs being duplicative of vacant space in the Link Center. SUMMARY It is difficult to look out into the future with any degree of certainty (especially, as the role of county government is in continuous change). We make effort to extract as many uses out of county buildings and facilities as possible (county needs as well as others). The Whitted Building appears to have a never ending lifecycle. Existing County uses and investments ensure the facility will continue to be a governmental asset for many years to come. Someday, it may move to other non - governmental use and ownership; that does not appear to be in the near future. However, if the County Commission sees merit in the proposals discussed within this report we can move that process forward. Finally, it is recognized the Town of Hillsborough's parking requirements will play a key role to whatever future uses are employed at the Whitted Building. If the Town and County can find agreeable methods to address that issue, the future of Whitted' s use to support cultural and community related activities will be brightened. otherwise, those options remain elusive. ATTACHMENTS I. orange County Cultural Center -- Strategic Business Plan 2. Visitor Bureau Input: Whited Building 3.. Whitted Building Library Space Plan 4. Arts Commission Sprinkler and Structure Reimbursement Proposal S. Notes From County Commissioners Building Walk Through (1- 23 -12)