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HomeMy WebLinkAboutAgenda - 03-19-2013 - 7bORANGE COUNTY BOARD OF COMMISSIONERS ACTION AGENDA ITEM ABSTRACT Meeting Date: March 19, 2013 Action Agenda Item No. 7 -b SUBJECT: Southern Branch Library Siting Criteria — Process Update DEPARTMENT: Library, Asset Management PUBLIC HEARING: (Y /N) No Services (AMS) ATTACHMENT(S): 1. September 18, 2012 Site Selection Criteria Abstract 2. December 6, 2012 Carrboro Recommendation Letter 3. Site Evaluation Criteria 4. Southern Branch Library Site Locator INFORMATION CONTACT: Lucinda Munger, (919) 245 -2528 Jeff Thompson, (919) 245 -2652 Michael Harvey, (919) 245 -2597 1 PURPOSE: To update the Board of County Commissioners ( "BOCC ") on the Southern Branch Library site selection analysis, provide feedback to staff on next steps, and authorize staff to present this information and relevant BOCC comments to the Carrboro Board of Aldermen at its April 9, 2013 work session. BACKGROUND: Purpose and Overview of the Site Selection Process — On September 18, 2012 the BOCC approved a set of guiding principles and a comprehensive site selection criteria for locating the Southern Branch Library, potentially a single level, 20,000 square foot facility contemplated for operation during fiscal year 2016 -17 within the Capital Investment Plan (note Attachment 1, "September 18, 2012 Site Selection Criteria Abstract "). The criteria and its related processes are a guide for staff examination, evaluation and recommendations to the BOCC for final site selection. The criteria and process were crafted over several months with public input as well as that of the Carrboro Board of Aldermen. The criteria focus on a process providing two tiers of analysis. The first level ( "Phase 1 ") focuses on technical considerations for the site, including location, broad geographic attributes, jurisdiction land use requirements, site constraints, access, and general cost considerations. Preliminary staff evaluation of selected sites would lead to recommendation(s) to the BOCC for more in -depth technical study of a given parcel(s) requiring the engagement of third party professional services firms in the areas of soils, topography, environmental, and cultural characteristics, utility capacity, access, transportation, and title issues. These in -depth studies would require an estimated $10,000 to $15,000 investment for each selected site to determine the full viability and support of a Southern Branch Library. Upon the receipt of these results, staff may recommend a site (or sites) to the Board that would matriculate to the second phase of analysis involving the receipt of public comment of the sites. At the conclusion of this process, the Manager may recommend a final site for the BOCC's approval for the complete development, construction, and operation of the Southern Branch Library. Sites nominated for examination by the Carrboro Board of Aldermen — The BOCC approved site selection criteria in September of 2012 and authorized staff to send a letter to the Town of Carrboro soliciting sites for evaluation using said criteria. The Town of Carrboro offered three sites in a letter submitted in December 2012 (note Attachment 2, "December 6, 2012 Carrboro Recommendation Letter'). These sites include: 1) 301 West Main Street — Carrboro Town Hall; 2) 1128 Hillsborough Street, Carrboro; and 3) 401 Fidelity Street, Carrboro. The County Manager directed staff to evaluate these three sites in accordance with the site selection criteria. Staff has completed a partial Phase 1 analysis of these three sites, the highlights of which are as follows: A. Staff recommends the elimination 301 West Main Street site (i.e. the Town Hall) from consideration due to significant constraints, most notably the condition of the building, limitation on usable space for the library, limitations on future expansion, and potential parking conflicts. B. Summary of staff assessment is as follows. Full analysis is presented in Attachment 3, "Site Evaluation Criteria ". 1128 Hillsborough Road 401 Fidelity Street 1. VISUAL APPEAL: Existing power lines to the 1. VISUAL APPEAL: Property is partially west running through an existing easement and a developed as a cemetery with significant trees on community garden. Property has vegetation the western portion of the property. Property is scattered throughout and is surrounded by single- surrounded by non - residential and multi - family family residential developments and a property developments. slated for development as a park. 2. REVIEW /APPROVAL PROCESS: Project 2. REVIEW /APPROVAL PROCESS: Project would require a heightened permit review process would require a heightened permit review (i.e. Conditional Use Rezoning, text amendment, process (i.e. Conditional Use Rezoning, text etc.) amendment, etc.) 3. ALIGNMENT WITH PLANNING TOOLS: 3. ALIGNMENT WITH PLANNING TOOLS: Property appears to satisfy various 'goals' with There is no clear synergy between uses (i.e. respect to the location of a library from both the cemetery and library) allowing them to be County and Carrboro's standpoint. There are developed together in accordance with local land enhanced opportunities for synergy between a park use policies and regulations. and a library. 4. SERVICE TO EXISTING /FUTURE 4. SERVICE TO EXISTING /FUTURE POPULATION: Property can serve existing and POPULATION: Property lends itself to serving anticipated future populations in the region. existing, local, population. 5. DEFEATS OBSOLESCENCE: Sufficient 5. DEFEATS OBSOLESCENCE: There is a space exists for development of a library facility that limited development window on this property with can morph over time to accommodate the needs of limited opportunities for expansion. southern Orange County residents. 6. SITE CONDITIONS, ALLOWANCES, AND CONSTRAINTS: The site has a significant utility easement that will need to be negotiated. The parcel also lacks significant road frontage. An existing NCDOT drainage easement could complicate access. 6. SITE CONDITIONS, ALLOWANCES, AND CONSTRAINTS: The site has significant visible rock outcroppings as well as wet areas and tree cover, all of which will need to be confirmed with further analysis. The proximity of the cemetery poses unique challenges to the development of the property. K Attachment 4, "Southern Branch Library Site Locator' depicts all three sites relative to one another and existing public transportation routes and stops. Both suggested sites are viable and offer unique challenges and opportunities. Staff prefers 1128 Hillsborough Road site as it offers greater options with respect to the development of a library in a manner consistent with the BOCC's guiding principles, and may be a more appealing site if considered as part of a larger parcel that includes the adjacent Carrboro park property. Staff believes that a "land - swap" or other land -use partnership with the Town of Carrboro utilizing the park property may be necessary for success. Staff continues to anticipate the Town of Carrboro will address and resolve any and all zoning related issues associated with the development of either the 1128 Hillsborough Road (or 401 Fidelity Road site). Staff recommends the County ask the Town to ensure a public, government operated library be considered a permitted use (i.e. administrative review /approval of a site plan) for either of the afore - mentioned properties without requiring a rezoning or other similar `heightened' review /permitting process. Further, the County may ask the Town to consider waiving the various fees associated with the review of the library from a site plan review /approval standpoint. FINANCIAL IMPACT: There are sufficient funds available for the in -depth study on both suggested properties. The costs for each parcel's study are estimated at $10,000 to $15,000. RECOMMENDATION(S): The Manager recommends that the Board receive the update, provide feedback on next steps, and authorize staff to present this information and relevant BOCC comments to the Carrboro Board of Aldermen at its April 9, 2013 work session. Attachment 1 4 ORANGE COUNTY BOARD OF COMMISSIONERS ACTION AGENDA ITEM ABSTRACT Meeting Date: September 18, 2012 Action Agenda Item No. 7 -a SUBJECT: Sitinq Criteria for Southern Branch Library — Final Recommendation DEPARTMENT: Asset Management Services (AMS), Library ATTACHMENT(S): Southern Branch Library Locational Criteria Map Denoting Southwestern Orange County PUBLIC HEARING: (Y /N) No INFORMATION CONTACT: Lucinda Munger, (919) 245 -2528 Michael Harvey, (919) 245 -2597 Michael Talbert, (919) 245 -2308 PURPOSE: To approve the siting and locational criteria governing the review and site selection process for the southern branch of the Orange County library. BACKGROUND: At the June 14, 2012 BOCC work session, staff presented the DRAFT copy of the siting criteria for the southern branch library for review and discussion. During this meeting, the BOCC reviewed and discussed comments from the Carrboro Board of Aldermen and subsequent staff suggested modifications. The attached criteria incorporate(s) these revisions. It should be noted that in a recent article printed within The Chapel Hill News, dated Sept 5, 2012, the Town of Carrboro has already begun an internal process of evaluating possible sites for the library based on compliance with local development regulations and processes. Designation of library: In past memoranda, staff has consistently referred to this project as the `southwestern branch of the Orange County library'. The term was coined in the 2004 Library Task Force Report where the Carrboro Library Workgroup recommended a `southwest regional branch library be established by combining existing services and staff into a new library `centered in the Town of Carrboro'. At the June 14, 2012 BOCC work session, staff was tasked with defining what `southwest' Orange County referred to in the context of this project. In reviewing the matter, staff determined the `southwest' quadrant of the County did not necessarily correspond to the highest concentration of population density in the area and did not properly identify all County residents intended to be served by the project. Staff suggests it would be more appropriate to refer to this project, in current and future discussion and correspondence, as the `southern branch of the Orange County library'. The change in nomenclature is intended to properly identify the population base the project will serve and eliminate confusion over the anticipated location of the facility. FINANCIAL IMPACT: There are no financial impacts associated with the adoption of the library siting criteria. The review of potential library locations, within Phase 1, would be conducted by County staff within adopted budgetary parameters. Phase 2 of the process may require a financial investment to secure development rights for selected properties. Funds for the previously considered 210 Hillsborough Street properties in Carrboro were allocated from the $215,000 set aside for future property acquisition. The County invested approximately $60,000 for examination of the 210 Hillsborough Road site in Carrboro. This included $25,000 in earnest money and $10,000 for the 120 day extension (Note: The County received the $25,000 in earnest money back). Any further `investment' will vary depending on the individual property. The remaining balance of $436,000 would be debt financed. There is funding totaling $7,525,000 in the 2016 -17 Capital Investment Plan (CIP) (page 21) for building construction and design services. This phase may also include the need for the County to incur `initial due diligence' costs to ensure the viability of selected properties. RECOMMENDATION(S): The Manager recommends that the Board: 1. Approve the attached Southern Branch Library Locational Criteria; and 2. Authorize the Chair to send a letter to the Town of Carrboro that: a. Transmits the Board - approved locational and site selection criteria to the Town, and b. Requests that the Town initiate public solicitation and review of properties for the southern branch of the Orange County library property based on the approved criteria. ORANGE COUNTY SOUTHERN BRANCH LIBRARY LOCATIONAL CRITERIA Guiding Principles When selecting a site for a new or expanded library, the Library system takes into account three fundamental factors: o The Library System recognizes that as a regional service provider, the location of libraries must provide for optimal service to the most number of residents within the entire System service area. This takes precedence over political boundaries or undeveloped neighborhoods. • The Board is committed to providing an equitable level of service throughout the entire County. • The placement of a library in a manner that maximizes its use will be more valuable over the long term than the original investment made in land or building. Typically, the original cost of a new building is exceeded in just three years by its cumulative operating costs. * * As amended by the BOCC at its June 14, 2012 work session PRELIMINARY PHASE — TECHNICAL SITE REVIEW AND ASSESSMENT Visibility: • Visible from the street • Classification of street where property will be accessed from (i.e. private, local, arterial, collector, major thoroughfare, etc.). • Visual appeal Site Capacity: • Able to provide comprehensive library services to all the residents of southern Orange County. • Meets minimum acreage (urban services vs. rural services) • Space for building and on -site parking • Adequate utilities and availability • Space for future expansion (building to allow for additional library services, parking, etc.) to serve all the residents of southern Orange County. • Space to accommodate the necessary setbacks, road expansions and other site amenities. Access: • Accessibility for pedestrians • Accessibility for vehicles • Accessibility for public transportation • Design capacity and existing traffic load of roadway proposed to access site. Alignment with Planning Tools (Comprehensive Plan): Alignment with planning tools applicable for the subject property (County Comprehensive Plan, adopted Small Area Plans, Strategic Plans, etc.) Lease versus Purchase: • Analysis of the long term viability of the site • Availability of property for lease Centrality of Location: • Existing and potential future population in a given area • Growth and development opportunities /constraints in a given area (i.e. what is future development, as embodied in applicable plans, going to look like and how will it impact the proposed library) • Proximity to schools • Proximity to retail • Proximity to other libraries Site Conditions, Allowances, and Constraints: • The cost - benefit conclusions of physical, legal, and land -use allowances /constraints • Technical and environmental assessments (planning /zoning, jurisdictional processes, etc.) • Environmentally sustainable (C &A, storm water mgt, buffers, energy "net zero" capacity) • Operationally sustainable • Defeats obsolescence Cost and Availability: • Cost for site acquisition • Availability of property for lease • Analysis of long term viability of site • Timeframe for development of the site • Terms for site control necessary for development process ORANGE COUNTY SOUTHERN BRANCH LIBRARY LOCATIONAL CRITERIA: ** As amended by the BOCC at its June 14, 2012 work session PRIMARY PHASE — PUBLIC INPUT AND ASSESSMENT Community Preference Input from elected officials Input from a board cross - section of the area to be served Orange County & Carrboro Friends of the Library Partnerships Co- location with other private or public entity Mutually beneficial joint development Enhances service possibilities MAP DENOTING NORTH 9 SOUTHWESTERN ORANGE COUNTY I / I I WEST )UTH�WESTr( OE ORANGE r f ii ".t t1 Approximate Center Point UADRANT -VOUNT)y Town of Hillsborough Town of Carrboro SOUTH EAST Town of Chapel Hill Data shown this map is obtained from Orange County GIS and is for reference only. Exact locations and boundaries should be verified. Map prepared by Orange County Planning & Inspections. USGS Water Feature O Parcels Q Zoning ® 100 YR Floodplain (Effective 02/02/07) Soils Survey Water Feature ED Township City Limits I• Floodway (Effective 02/02/07) M OC Updated Water Feature IC:p School System Boundary O ETJ ® 500 YR Floodplain (Effective 02/02/07) Water Body Contours Conservation Easements D Buildings O River Basins =county Boundary Held by Others ® Water and Sewer Boundary 1 inch = 16,299.149 feet ® Watershed R;ti Soils - Orange County 0 6,500 13,000 26,000 Conservation Easements December 6, 2012 Attachment 2 TOWN OF CARRBORO NORTH CAROLINA WWW.TOWN0FCARRBORO.ORG Mr. Frank Clifton, Orange County Manager Link Government Services Center 200 S. Cameron St. Hillsborough, NC 27278 RE: Proposed Sites for Southwestern Branch of the Orange County Library Mr ion, f.14. k 10 On November 20, 2012 the Carrboro Board of Aldermen discussed potential sites for the southwestern branch of the Orange County Library. These sites were discussed within the County's and Town's respective siting criteria. The Board of Aldermen unanimously approved the submittal of three potential sites for consideration by the Orange County Board of Commissioners: ❖ 301 W. Main St. (Town Hal •,. 401 Fidelity St. (adjacent to Westwood Cemetery) ❖ 1228 Hillsborough Rd. (adjacent to MLK Park) The Carrboro Board would also like to continue discussions with the Orange County Board of Commissioners regarding the County's siting criteria. The purpose of this discussion would be to reevaluate the criteria in order for consideration of additional sites in planned and approved mixed -use projects in downtown Carrboro. Some examples of downtown projects might include locations such as 300 E. Main Street and 203 South Greensboro Street, among a few others. The Town would also like to discuss Orange County's thoughts about the siting and land acquisition process including the possible issuance of a Request for Proposals or Call for Properties. This could generate additional public input and assure a thorough evaluation of all options. Thank you for your consideration and assistance. This is an exciting opportunity for everyone. The Town is ready to move another step forward in this collaborative process. Sincerely, 0 David Andrews,lCMA -CM Town Manager, Carrboro CC: Mayor and Board of Aldermen Trish McGuire, Carrboro Planning Director Lucinda Munger, Orange County Library Director 301 WEST MAIN STREET, CARRBORO, NC 27510 • (919) 942 -8541 • FAX (919) 968-7745 • Vol CE/TTY/TDD /ASCII ;71 1 AN EQUAL OPPORTUNITY PROVIDER ATTACHMENT 3 - SITE EVALUATION CRITERIA: PHASE 1- PRELIMINARY ASSESSMENT VISIBILITY Italicized words denote Town of Carrboro Comments 1 1 1128 Hillsborough 1 401 Fidelitv Visible From Street Classification of Street where property will be access from TOC COMMENT: Coulb be visible from Hillsborough Rd. OC STAFF ADDITIONAL COMMENT: Property location /orientation would allow a library to be visible from a designated arterial, major community thoroughfare. TOC COMMENT: Arterial Existing power lines to the west of the property TOC COMMENT. Visible from Fidelity St. OC STAFF ADDITIONAL COMMENT: Property location /orientation would allow a library to be visible from identified, subcollector, street. Off - site directional signage will be necessary directing motorists and pedestrians to the site. TOC COMMENT. Sub - collector 11 Visual Appeal running through an existing easement. Property is partially developed as a cemetery Community garden located in easement. Property (Town of Carrboro) with significant trees on the has vegetation scattered throughout. Single- family western portion of the property (purported library residences to the north, west, and south. site). Property is surrounded by non - residential Property to the east slated for development as a and multi - family developments. the area a park by the Town. 'cluttered' look and feel. 12 SITE CAPACITY 1128 Hillsborough 401 Fidelity Able to provide comprehensive library services to all the residents of southern Orange County Yes Probably. Yes. 4 acres of land area unencumbered by Meets minimum acreage Yes cemetary. Space for building and on -site parking Yes Yes Adequate utilities and availability TOCCOMMENTS: Yes TOCCOMMENTS: Yes Space for future expansion (building to allow Power easement will restrict development for additional library services, parking, etc.) to options. Local utility company will have to be serve the residents of southern Orange contacted to see if they will allow parking in the County. easement. Cemetery encumbers roughly half of the property. Space to accommodate the necessary setbacks, road expansions, and other site amenities Appears to be sufficient space Appears to be sufficient space 13 ACCESS 1128 Hillsborough 401 Fidelity TOC COMMENTS: 1.18 miles from downtown TOC COMMENTS: 0.36 miles from downtown Carrboro, approximately 35 minutes walk time. Carrboro, approximately 10 minute walk time. Sidewalks and bile lanes existing and connect the Sidewalks and bile lanes existing and connect the Accessibility for Pedestrians property to downtown. property to downtown. TOC COMMENTS: Access would be from Fidelity Street. Site could be served by individual access road or connection to existing access to TOC COMMENTS: Access would be from Westwood Cemetery. OC Hillsborough Road. Site could be served by STAFF ADDITIONAL COMMENT: Existing streets individual access road or connection to MLK Park become congested on weekends in support of the Accessibility for Vehicles property. nearby farmers market. TOC COMMENTS: CHT stop for F Route located at TOC COMMENTS: CHT stop for CW route located Accessibility for public transportation Dove /Hillsborough and James /Quail Roost David /Fidelity Street Design capacity and existing traffic load of TOC COMMENTS: Design capacity= 12,000 1day; roadway proposed to access site 12011 AADT = 6,500 TOC COMMENTS: Design capacity= 12,000 1day 14 ALIGNMENT WITH PLANNING TOOLS (COMPREHENSIVE PLAN) LEASE VERSUS PURCHASE 1128 Hillsborough 401 Fidelity No apparent environmental or physical Unsure how the Town of Carrboro views Analysis of long -term viability of site impediments to development identified. development of a 'institutional' land use in Alignment with planning tools applicable for TOC COMMENT: This property is currently listed concert with a cemetery. It is not clear to OC staff the subject property (County Comprehensive This property appears to satisfy various 'goals' there is a synergy between the uses allowing them Plan, adopted Small Area Plans, Strategic with respect to the location of a library from both to be developed together in accordance with local Plans, etc.) Ithe County and Carrboro's standpoint. Iland use policies and regulations. LEASE VERSUS PURCHASE Library site is very rocky. Vehicle access may be No apparent environmental or physical limited given existing driveways. There may also Analysis of long -term viability of site impediments to development identified. be challenges for emergency vheicle access. TOC COMMENT: This property is currently listed TOC COMMENT. This property could be leased to for purchase. OC STAFF ADDITIONAL Orange County. OC STAFF ADDITIONAL Availability of property for lease COMMENTL Staff to confirm with Seller COMMENT: Staff to confirm Carrboro position 15 CENTRALITY OF SITE 1128 Hillsborough 401 Fidelity Site is located in an area easily accessible to Existing and potential future population in existing and anticipated future residents in Site would provide access to existing, local, given area southern Orange County. population. With exception of the utility easement, the property is unencumbered allowing for more Expansion opportunities are limited given existing opportunities for expansion. Possible land use. Presence of cemetery does not lend development of park on adjacent property would itself to alternative development /programmatic Growth and development allow for opportunities for shared amenities and options as a support mechanism for the proposed opportunities /constraints in a given area expansion of programmatic services. library. TOC COMMENT: 0.4 miles from McDougle School, TOC COMMENT. 0.5 miles from Carrboro Proximity to schools 1.1 miles from Carrboro Elementery Elementery TOC COMMENT: Closest retail opportunities are TOC COMMENT. Closest retail opportunities are Proximity to retail in downtown Carrboro, 1.18 miles away in downtown Carrboro, .82 miles away TOC COMMENT: Existing branch library at TOC COMMENT. Existing branch library at McCougle School (0.4 miles), Carrboro Cybrary McCougle School (2.2 miles), Carrboro Cybrary (1.18 miles) Chapel Hill Public Library - Permanent (.82 miles) Chapel Hill Public Library - Permanent Site (4.4 miles) CH Public Library - University Mall Site (4.3 miles) CH Public Library - University Mall Proximity to other libraries (4.6 miles) (3.8 miles) 16 SITE CONDITIONS, ALLOWANCES, AND CONSTRAINTS 1128 Hillsborough 401 Fidelity Current condition of portion of property where The cost - benefit conclusions of physical, legal, As indicated herein this site offers more library is to be developed is very rocky and will and land use allowances /constraints opportunities than constraints. require additional 'blasting' work to clear. Library would require a heightened permit process Library would require a heightened permit process Technical and environmental assessments (i.e. Conditional Use Rezoning, text amendment, (i.e. Conditional Use Rezoning, text amendment, (Planning /Zoning, jurisdictional process, etc.) etc.) etc.) Probably not, due to obvious rock formations Environmentally Sustainable (C and A, Probably. Will need assistance from consultants challenging on site stormwater management. Will stormwater management, buffers, energy, should this property move forward in need assistance from consultants should this 'net zero capacity') consideration property move forward in consideration Hindered due to existing development on Operationally Sustainable Yes. property Staff believes there is sufficient, unencumbered, space to allow for the development of a library facility that can morph over time to accommodate There is a limited development window on this Defeats obsolescence the needs of southern Orange County residents. property with limited opportunities for expansion. 17 COST AND AVAILABILITY PHASE 2 - PUBLIC INPUT AND ASSESSMENT COMMUNITY PREFERENCE Input from Elected officials 1128 Hillsborough 401 Fidelity Input from a broad cross - section of the area TOC COMMENT: Listed for sale at $200,000 Cost for site acquisition ($1.33 1sgft) TOC COMMENT. Owned by the Town of Carrboro Orange Couty and Carrboro Friends of the TOC COMMENT: This property is currently listed TOC COMMENT. This property could be leased to Availability of property for lease for purchase Orange County Existing development limits opportunities for expansion or the development of diverse Property offers reasonable expansion and partnerships to promote use /development of the partnership opportunities to support long -term property to meet the needs of southern Orange Analysis of long -term viability of the site provision of library services. County. Timeframe for development of site Terms of site control necessary for the development of the site PHASE 2 - PUBLIC INPUT AND ASSESSMENT COMMUNITY PREFERENCE Input from Elected officials Pending Pending Input from a broad cross - section of the area to be served Pending Pending Orange Couty and Carrboro Friends of the Library Pending Pending IN PARTNERSHIPS 1128 Hillsborough 401 Fidelity Co- location with other private or public entity TOC COMMENT: Opportunity to develop jointly Mutual beneficial joint development with Martin Luther King Jr. Park TOC COMMENT: Opportunity to develop site with additional amenities and collaborate with Enhances service possibilities Carrboro Farmer's Market for additional parking Attachment 4 `y 'r► BUS Stops LAW"", � �,.� 0 4�Feet o z( BUS ROUteS ; , }. ._,, Orange /County Planning and Inspections Department GIS Map Prepared by Brian Carson. 3/12/2013