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HomeMy WebLinkAboutAgenda - 05-13-2014 - 1ORANGE COUNTY BOARD OF COMMISSIONERS ACTION AGENDA ITEM ABSTRACT Meeting Date: May 13, 2014 Action Agenda Item No. 1 SUBJECT: Southern Branch Library Siting Criteria Update DEPARTMENT: Library, Asset Management PUBLIC HEARING: (Y /N) No Services (AMS), Planning ATTACHMENT(S): A. BOCC Approved Southern Library Siting Criteria B. Criteria Report — 120 Brewer Lane C. Presentation: Available at http: / /orangecountync.gov /library /doc uments /BOCCPresentation. pdf PURPOSE: To: INFORMATION CONTACT: Lucinda Munger, 919 - 245 -2528 Jeff Thompson, 919 - 245 -2658 Michael Harvey, 919 - 245 -2597 1. Receive an update and provide feedback regarding the 120 Brewer Lane Primary Phase Public Input process and Southern Branch programming report delivered by County staff and Freelon Group Architects of Durham; and 2. Provide direction to the Manager with regard to authorizing further due diligence to be performed on the 120 Brewer Lane site for the development of the Southern Branch Library. BACKGROUND: On September 18, 2012 the Orange County Board of Commissioners (BOCC), in conjunction with the Carrboro Board of Aldermen, approved a set of guiding principles and a comprehensive site selection criterion (Attachment A) for locating the new Southern Branch of the Orange County Library (hereafter "the Branch "). Since that time the Town has submitted several properties for review by County staff consistent with the approved Branch siting process. On November 5, 2013 the BOCC authorized staff to continue with a more granular level of Preliminary Phase I analysis regarding the 120 Brewer Lane site. Attachment B summarizes the overall due diligence findings of the site, as framed by the Site Selection Criteria. On January 23, 2014 the Board authorized the engagement of Freelon Associates of Durham, NC to facilitate the Primary Phase Public Input ( "Primary Phase ") for the Brewer Lane site. Freelon Associates began working with the project staff in February 2014. Freelon completed a thorough assessment of library space needs, and developed alternatives based on maximum efficiencies, known statistical information regarding the library and demographic projections. Input from the community, the library staff, Friends group, and the Southern Branch Library project team, was included in the development of this recommendation. Freelon Associates and County staff conducted two community engagement workshops and a middle school workshop, gleaned input from the Carrboro Community Dinner attendees, and offered an online survey and public comment cards to collect data to assist in defining the recommendation. Based on this process and public input, Freelon Associates recommends the Southern Branch Library size be between 15,650 and 18,475 square feet (minimum net square footage). Freelon Associates noted that while this recommendation accommodates the basic current needs of the community, it does not account for the standard 20 -year projected population /library growth. Building in flexibility will allow for a measure of changeability, but will not accommodate the potential expanded needs of 20 years in the future. A plan for future expansion opportunity should be considered. Freelon's recommendation on distilling this square footage into a flexible and adaptable program to serve the southern area of Orange County is below. Recommended Conceptual Program PUBLIC SPACES Adults/Teens /Children 53% Meeting /Gathering Spaces 15% Marketplace 12% Creation spaces 10% NON PUBLIC 10% SPACES Adults/Teens /Children: Collections, Seating, Computers, Small Study Spaces, Group Spaces Meeting /Gathering: Multipurpose flexible meeting space, Conference room Marketplace: Entry, Service Desk, Self- Checkout, Returns, Holds, New Releases, Display, Gallery, Download Hubs, Technology Vending, Book Sales Creation: Technology /Media Lab, Training Classroom, Flexible Multipurpose Lab Non Public: Staff Workspaces, Shipping /Receiving, Book Return These areas will be designed to provide support to these critical components of a 21St century library: Flexibility: Flexibility is key in new library design. Future services and rearrangements must be taken into account. This ranges from flexibility within the infrastructure and technology, to flexible furniture. Collections: This conceptual program takes into account the changing world of library programming. As new neighborhood libraries open with innovative programs tailored to meet K the specific community's needs, circulation counts are known to double and in some cases even triple. The use of a floating collections concept along with strong ILL (Inter - library loan) partnerships allows libraries to maintain smaller shelving footprints while increasing the range of available materials. Programs: This coincides with the ever - increasing need to provide more "people space." Communities need access to the latest technology, training, meeting and collaborative space. As customers find fewer locations outside of the home for quiet study and reading, it is increasingly important to provide these opportunities within the library. Children's spaces are expanding to include more exploratory learning opportunities. And teen spaces are including zones not only for hanging out but also for creating. Access to high and low tech creation spaces allows the synergies between age groups to be utilized and are essential to providing a complete library experience. Operations: To minimize operational costs and increase security, the library spaces should be open and visible. This is accomplished with a single main entry point, lower shelving heights and smaller touchdown hubs for floating staff to consult with customers. Operational costs are also minimized by consolidating technical services work (cataloging, processing, etc.) at the Main Branch Library. Representatives of Freelon Associates will present a more in -depth report outlining the process, findings and associated recommendations to the Board and will be available for questions. The meeting presentation for this item (Attachment C) is available at http: / /orangecountync.gov /library /documents /BOCCPresentation. pdf If the Board determines that staff should continue with the due diligence process regarding the 120 Brewer Lane property as the potential site for the Southern Branch library, staff will be prepared to present estimated development costs and more detailed project information at the June 17, 2014 regular Board meeting. Should the Board direct staff to continue with the due diligence, the general schedule will be as follows: TASK PROPOSED END BY DATE BEGINNING DATE BOCC Action: Workgroup and Consultant report to the May 13, 2014 May 13, 2014 BOCC for feedback (to include public input summary and programming parameters to assist in potential future design of Southern Library) BOCC Action: Decision to allow further due diligence to be June 17, 2014 June 17, 2014 performed through the 2014 summer break BOCC Action: Potential Development Agreement review October, 2014 October, 2014 and approval to move forward with developing the 120 Brewer Lane Site Designer Request for Qualification process October, 2014 December, 2014 BOCC Action: Approval of Project Designer January, 2015 January, 2015 Design Process (with several design updates to the BOCC; February, 2015 December, 2015 public design input continues throughout process) Construction Bid Advertisement and Process January, 2016 Aril, 2016 BOCC Action: Bid Award May, 2016 May, 2016 Facility Construction and Commissioning 15 months June, 2016 Sep tember, 2017 Facility Stocking September, 2017 October, 2017 Grand Opening October, 2017 October, 2017 M FINANCIAL IMPACT: Costs related to the due diligence activities of the 120 Brewer site total $36,000, including site title work as well as the public process facilitation process. An additional $15,000 is encumbered for current and potentially future legal counsel related to the drafting and negotiation of the Development Agreement with the Developer. The Board has appropriated $650,000 within the FY2012 -13 and FY2013 -14 Capital Investment Plan for due diligence and land acquisition costs for the Southern Branch library. RECOMMENDATION(S): The Manager recommends that the Board: 1) Receive an update and provide feedback regarding the 120 Brewer Lane Primary Phase Public Input process and Southern Branch programming report delivered by County staff and Freelon Group Architects of Durham; and 2) Provide direction to the Manager with regard to authorizing further due diligence to be performed on the 120 Brewer Lane site for the development of the Southern Branch Library. Attachment A 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. o The Board is committed to providing an equitable level of service throughout the entire County. o 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 aruended by the BOCC at its June 14, 2012 tivork session PRELIMINARY PHASE--- TECI- INICAL 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 _ librar_y.....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_pr_o.perty__fo.r_le.ase • Analysis of long term viability of site • Timeframe for development of the site • Terms for site control necessary for development process C ORANGE COUNTY SOUTHERN BRANCH LIBRARY LOCATIONAL CRITERIA: ** As amended by the BOCC at its June 14, 2012 wort; 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 SITE EVALUATION CRITERIA: PHASE 1 - PRELIMINARY ASSESSMENT VISIBILITY Attachment B 120 Brewer Lane Library building will not be directly visible from Main Street or other major roadway. Off -site directional signage, including directional signage within the 300 East Main property, will be necessary directing motorists and pedestrians Visible From Street to the site. Classification of Street where property will be access from Arterial Building housing proposed library shall be part of a mixed use development Visual Appeal comprised of residential and non - residential land uses as well as a parking deck. Rear of the property looks over wooded area. An existing, unused, building is to be demolished. SITE CAPACITY 120 Brewer Lane Able to provide comprehensive library services to all the residents of southern Orange County Yes Meets minimum acreage Yes Space for building and on -site parking Yes Adequate utilities and availability Yes Space for future expansion (building to allow for additional library services, parking, etc.) to serve the residents of southern Orange County. Sufficient flood space shall be available to accommodate anticipated library based on County consultant and Library Project Team estimates. Space to accommodate the necessary setbacks, road expansions, and other site amenities IYes 10 ACCESS 120 Brewer Lane Property is downtown and will be adjacent to a proposed parking deck as well as an existing sidewalk system affording pedestrian access off of Main Street. The property is part of a master planned development with internal access Accessibility for Pedestrians points for various residential /non - residential uses located on -site. Access would be off of Main Street and 'Brewer Lane' (undeveloped street Accessibility for Vehicles access) Accessibility for public transportation Public transportation access will be possible Design capacity and existing traffic load of roadway proposed Based on comments from Town of Carrboro this should not be an issue but will Ito access sit lhav e to be addressed by the developer as part of the permit review process. 11 ALIGNMENT WITH PLANNING TOOLS (COMPREHENSIVE PLAN) LEASE VERSUS PURCHASE 120 Brewer Lane Alignment with planning tools applicable for the subject property (County Comprehensive Plan, adopted Small Area Plans, Strategic Plans, etc.) This property satisfies various 'goals' with respect to the location of a library from both the County and Carrboro's standpoint. Analysis of long -term viability of site with the developer LEASE VERSUS PURCHASE 120 Brewer Lane This will be a lease /puchase situation for the County as part of an agreement Analysis of long -term viability of site with the developer This will be a lease /puchase situation for the County as part of an agreement Availability of property for lease with the developer 12 CENTRALITY OF SITE 120 Brewer Lane Site would provide access to existing and future, local, population. County Existing and potential future population in given area residents will have parking available to make use of the facility. The size of the 'space' for the library will be limited to a lease /purchase agreement with the developer. Expansion will be viable only if there are Growth and development opportunities /constraints in a vacancies in other proposed 'store fronts' allowing the County to given area lease /purchase for expansion. Proximity to schools Approxiamtely 2 miles from Carrboro elementary School Proximity to retail Will be in the heart of a retail /residential mixed use development. Approxiamtely 4 miles from existing library located within the Town of Chapel Proximity to other libraries Hill 13 SITE CONDITIONS, ALLOWANCES, AND CONSTRAINTS 120 Brewer Lane The cost - benefit conclusions of physical, legal, and land use The County's Attorney (B. Ferrell) and Library Project Team have concluded allowances /constraints project is viable and constraints are either negligable or manageable. Technical and environmental assessments (Planning /Zoning, Developer will address permit process. Could involve a heightened level of jurisdictional process, etc.) permit review by Carrboro (i.e. Special Use Permit). No apparent issues. Project can accomplish several stated goals of the BOCC and Carrboro Board of Alderman with respect to the building /development being sustainable. Please note library will only be a small component of the Environmentally Sustainable (C and A, stormwater total development of the property. The library project team cannot make management, buffers, energy, 'net zero capacity') committments on sustainability for the developer. Operationally Sustainable Yes. Conceptual layout for library space maximizes adaptability for the library Defeats obsolescence overtime to address issues of obsolence. 14 COST AND AVAILABILITY PHASE 2 - PUBLIC INPUT AND ASSESSMENT COMMUNITY PREFERENCE 120 Brewer Lane Input from Elected officials Developer has indicated a strong desire to discuss lease /purchase options for a Cost for site acquisition space to house the library. Orange Couty and Carrboro Friends of the Library Developer has indicated a strong desire to discuss lease /purchase options for a Availability of property for lease space to house the library. Property offers potential for reasonable expansion , assuming willingness of developer and vacancies, and partnership opportunities to support long -term Analysis of long -term viability of the site provision of library services. Pending on permitting from Carrboro but appeas consistent with establised CIP Timeframe for development of site program guidelines /timeframes Terms of site control necessary for the development of the site Being handled by the developer PHASE 2 - PUBLIC INPUT AND ASSESSMENT COMMUNITY PREFERENCE 120 Brewer Lane Input from Elected officials Completed Input from a broad cross - section of the area to be served Completed Orange Couty and Carrboro Friends of the Library Completed 15 PARTNERSHIPS 120 Brewer Lane Co- location with other private or public entity Mutual beneficial joint development Enhances service possibilities