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HomeMy WebLinkAboutAgenda 03-21-2017 - 6-a - Environmental & Agricultural Center - Visioning Study Update and Development Options 1 ORANGE COUNTY BOARD OF COMMISSIONERS ACTION AGENDA ITEM ABSTRACT Meeting Date: March 21, 2017 Action Agenda Item No. 6-a SUBJECT: Environmental & Agricultural Center (EAC) —Visioning Study Update and Development Options DEPARTMENT: Asset Management Services ("AMS"), Department of Environmental, Agriculture, Parks & Recreation ("DEAPR") ATTACHMENT(S): INFORMATION CONTACT: 1 - HH Architecture Preliminary Study Jeff Thompson, 919.245.2658 (Electronically Linked via Title) David Stancil, 919.245.2522 2 - Revere Road EAC Site and Space Angel Barnes, 919.245.2628 Plans 3 - Torain Street/Public Works Drive Aerial 4 - Space Utilization Principles - Board Adopted (2001, 2005, 2013) 5 - Development Options Summary Table PURPOSE: To receive the preliminary visioning and development option study regarding the Environmental and Agricultural Center (EAC) prepared by HH Architecture and provide direction to the Manager regarding the following staff-recommended development options: 1) Major EAC Renovations — Revere Road: Perform major renovations to the existing EAC facility at 306 Revere Road (see Attachment #2 for Revere Road EAC Site and Space Plans); • Additional CIP Funds Required: $235,000 2a) Build New EAC — Torain Street: Pursue a development plan and new construction of an EAC facility located on County owned Torain Street/Public Works Drive property (see Attachment #3 for Torain St/Public Works Drive Aerial); • Additional CIP Funds Required: $1,008,500 2b) Build New EAC & Park Operations Center — Torain St: Pursue a development plan and new construction of an EAC facility and a co-located Parks Operations Base located on the County owned Torain Street/Public Works Drive property; • Additional CIP Funds Required: $430,500 3) Build New — New Site: Explore and recommend to the BOCC other sites for development on the northern periphery of Hillsborough for either an EAC site or a co-located EAC/Parks Operations Base site. • Additional CIP Funds Required: Similar to 2a/2b plus land acquisition costs. 2 BACKGROUND: There are three main areas of pertinent background information to provide context for this development decision. 1.) Blackwood Farm Master Plan / Parks Operation Base On March 3, 2011, the BOCC adopted the Blackwood Farm Park Master Plan, which included plans for a constructing a new DEAPR compound which included a new Parks Operation Base. During the FY2012-13 Capital Investment Planning process, the BOCC discussed not including the EAC as part of the Board Adopted Blackwood Farm Park Master Plan. The Parks Operation Base is currently contemplated in the FY18-19 CIP to be located Blackwood Farm. 2.) Revere Rd EAC / HH Architecture Preliminary Study The Environment and Agricultural ("EAC") facility currently houses the Department of Environment, Agriculture, Parks and Recreation ("DEAPR") administrative and agricultural services offices, Soil & Water, Cooperative Extension, USDA Rural Development, the Farm Services Administration, and climate controlled County storage on a 3.84 acre parcel that also houses Emergency Services Station # 1, and a freestanding 1,200 square foot storage facility. The EAC building and associated parking represents approximately 2.25 acres of this site. In 2013, funds to maintain the facility roof, HVAC, and parking areas of the EAC was removed from year 5 (2018) of the FY2013-2018 Capital Investment Plan ("CIP") with the idea that this facility would be renovated or replaced. The Board had considered re-purposing the Government Services Annex facility (208 S. Cameron Street, Hillsborough) as a renovated EAC facility, and re-locating the Board of Elections offices into the under-utilized lower level of the Link Government Services Facility. After engaging a professional designer to study these potential re-purposed spaces, the initiatives were rejected by the Board in the spring of 20132. This decision centered on the need for the EAC to be located on the periphery of Hillsborough and the fact that the EAC customer base was satisfied with its Revere Road location for the agricultural community. As part of the Board's decision, they directed County staff to complete a comprehensive physical assessment analysis of County facilities as well as to create a Space Study Work Group3 to study the entirety of County facilities and assist in informing ongoing Capital and Operating budget processes. In June of 2015, the Board appropriated design and due diligence funds as part of the FY2015- 16 plan for a new or renovated EAC on its existing and desired Revere Road site. In April of 2016, the Board authorized the Manager to engage HH Architecture of Raleigh, NC as the designer for the Environmental and Agricultural Center project. The initial vision planning and comprehensive stakeholder input sessions were conducted in the summer and early fall of 2016. The Designer and its sub-consultants analyzed the facility and site, and met extensively with County Commissioners, staff, and stakeholders in developing its conclusions. The ' FY2013-2018 BOCC Adopted Capital Investment Plan,page 30. 2 Conceptual Facilities Use Analysis and Presentation,2/12/13 BOCC Work Session,Item#2. 3 Physical Assessment Report, 11/12/13 BOCC Work Session Item#3;Orange County Space Study Work Group Report,April 9,2015 BOCC Budget Work Session,Item#2. 3 Designer also provided context with best practices in other areas with developed Agriculture Centers. This visioning and stakeholder input process produced three construction alternatives for the project at the existing Revere Road site (all options were analyzed with both a conventional administrative office and open office design concept): 1) A major renovation of the existing facility; 2) Deconstructing the existing facility and replacing it with a conventional steel or pre- engineered steel structure, as well as enhanced exterior wall cladding, and upfit. A pre- engineered steel construction is expected to provide a 20% cost savings with similar functional performance and energy efficiency. 3.) BOCC Space Utilization Principles As previously mentioned, the Space Study Work Group created/was led by guiding principles that were formally adopted over time by the BOCC in 2001, 2005 and 2013. These are paraphrased below (see linked Attachment #4 for full text): 1. Co-location of departments with similar functions and/or those that serve the same customer base. 2. Consolidation of County operations to as few sites as may be practicable in an attempt to gain operational efficiency and customer access. 3. Owning facilities in which County operations are located, as opposed to leasing, except where there exists a compelling business reason to do so 4. Sustainable practices and high-performance building standards will be used in building and maintaining facilities and spaces. 5. The highest and best use of stressed (fully or practically depreciated) facilities will be determined though cost-benefit analysis. Staff applied these guiding principles to evaluate the 4 recommended development options and locations for the EAC. Summary findings and development options. The significant results of this process are as follows: 1. Residual Value: The existing facility is structurally sound and not economically obsolete; 2. Investment Needed: The facility is functionally obsolete and could benefit from a major renovation or deconstruction/reconstruction to provide more efficient administrative and service operations; 3. Location Discussion: The location of the facility on the northern periphery of Hillsborough is desirable, but the space constraints of the Revere Road parcel and the residential character of the location have led some County Commissioners to suggest other uses: e.g. affordable housing or a community center. 4 4. Co-location Opportunity: A new EAC could be built on the northern periphery of Hillsborough, and a potential co-location of the EAC with the Parks Operations Base (currently contemplated in the FY18-19 CIP to be located at Blackwood Farm) would provide operational and capital cost synergies and efficiencies--such as forgoing any major septic system required at Blackwood Farm, and reducing needed infrastructure (parking lots, storage, etc.). Furthermore, all of the DEAPR divisions and related agencies less the Recreation Staff would essentially be housed on the same campus. If these co-located facilities were built on the -4 acres of developable County-owned property between Fairview Park and the County garage, additional shared infrastructure efficiencies are possible. Space for outdoor training, assembly, and demonstration areas is also available being adjacent to Fairview Park. 5. Opportunity to Remedy Major Repair Needs: The current physical assessment of the major systems replacements, parking repair and re-surfacing of the Revere road facility corroborate the estimated costs of $1,354,000 reflected in the FY2013-18 CIP. Investment in these repairs and subsequent ongoing maintenance would improve the facility; however customer service, administrative efficiencies, and energy efficiency of the facility would not be addressed. Development Options Summary and Characteristics 1. Renovate Existing EAC Facility on Revere Road a. Overview - Renovate the existing 306 Revere Road facility and parking lot area; structurally sound building shell remains with a major systems and interior space renovation; new roof and parking lot (see Attachment 2, "Revere Road EAC Site and Space Plans") b. Probable Cost Estimate - $3,685,000. This includes an additional amount of $235,000 to be added in the FY2017-22 Capital Investment Plan ("CIP") c. Comparative Advantages/Disadvantages - Advantages: 1) Achieves functional efficiency for customers and administrative staff; 2) increases energy efficiency; and 3) is the lowest cost option. Disadvantages: Site may not be the highest and best use; building footprint and site geometry limitations do not optimize site and space functionality. d. Conformance with BOCC Space Planning Principles - Co-location, Owned Property, and Sustainable design principles are met. Consolidation and Highest and Best Use could be considered being met with further discussion. 2a. New Construction of EAC Facility on Torain/Public Works Drive County Property a. Overview - Build a new EAC facility on County owned property adjacent to Fairview Park and County Fleet operations campus on Public Works Drive (see Attachment 3, "Torain Street/Public Works Drive Aerial"). The recommended construction method is a pre-engineered steel structure with premium exterior cladding and appropriately design interior upfits (page 27, HH Architecture Study). 5 b. Probable Cost Estimate - $4,458,000. This includes an additional amount of $1,008,500 to be added in the FY2017-22 CIP. Additional construction costs specific to the site include a sanitary sewer line upgrade, required storm water management features, and related site costs. c. Comparative Advantages/Disadvantages - Advantages: 1) Achieves a higher level of functional and energy efficiency for customers and administrative staff due to the ability to design new construction without existing shell constraints of the Revere Road facility; 2) new construction advantages offering longer lasting facilities; and 3) provides the ability to re-purpose the Revere Road site or potential proceeds from a sale of the Revere Road property. Disadvantages: 1) The site may be considered more secluded since it is not on a "through-street" such as Revere Road (Public Works Drive acts more as a driveway/entrance to Fairview Park and the Fleet operations area) ; and 2) this is the highest cost option. d. Conformance with BOCC Space Planning Principles - Co-location, Owned Property, and Sustainable design principles are met. Consolidation and Highest and Best Use could be considered being met with further discussion. 2b. Co-Locate EAC Facility and Park Operations Base on Torain/Public Works Drive County Property b. Overview— Build a new EAC facility and a co-located Park Operations Base on County owned property adjacent to Fairview Park and County Fleet operations campus on Public Works Drive (see Attachment 3, "Torain Street/Public Works Drive Aerial"). The recommended construction method for all buildings is a pre-engineered steel structure with premium exterior cladding and interior upfits based upon designed need. c. Probable Cost Estimate - $6,452,000. This is the sum of the base costs of the EAC facility stipulated on page 27 of the HH Architecture study ($4,200,000) and the proposed Park Operations Base ($2,572,000) in the FY2016-21 CIP includes an additional amount of $430,500 to be added in the FY2017-22 Capital Investment Plan. The additional sanitary sewer line upgrade, required storm water management features, and related site costs are present as within the EAC only option 2a. Significant costs avoided by co-locating the facilities include the required septic system at Blackwood Farm and the ability to share infrastructure (shared parking, eliminating duplicative site work, share yard areas for storage, staging, training, etc.) d. Comparative Advantages/Disadvantages - Advantages: 1) Meets the same higher level of functional and energy efficiency for customers and administrative staff as discussed in Option 2a above; 2) achieves an even higher level of efficiency in co- locating the Park Operations Base on the same campus as the other DEAPR divisions; 3) places the Park Operations activities within the same compound as the fuel and maintenance operations; 4) benefits from the avoidance of economic and environmental costs associated with the needed septic system at Blackwood Farm; 5) is adjacent to Fairview Park; and 6) provides the ability to re-purpose the Revere Road site or potential proceeds from a sale of the Revere Road property. Disadvantages: 6 1) The site may be considered more secluded since it is not on a "through-street" such as Revere Road; Public Works Drive acts more as a driveway/entrance to Fairview Park and the Fleet operations area; and 2) the potential transportation impacts of servicing County parks from this location. e. Conformance with BOCC Space Planning Principles - Co-location, Consolidation, Owned Property, and Sustainable design principles are met. Highest and Best Use could be considered being met with further discussion. 3. Explore Potential Sites Along Northern Periphery of Hillsborough a. Overview— Examine prospective sites within the Highway 70/Cornelius Street Corridor along the northern Hillsborough periphery. b. Probable Cost Estimate — Costs match options 2a or 2b (relocate EAC and/or the Park Operations Base) but will incur site acquisition costs and other site development costs in addition to those called out in this assessment. There would be no requirement to appropriate additional funds to the CIP until these costs are more fully understood. c. Comparative Advantages/Disadvantages — Advantages: 1) The ability to locate and purchase a suitable site that would overcome the perceived weakness of seclusion, visibility, and transportation reach to County parks; and 2) the capacity for growth within the County owned real estate portfolio. Disadvantages: Required additional time for site identification, due diligence, and acquisition activities; 2) purchased property would likely be removed from the tax revenue generation rolls; and 3) probable additional costs associated with the real estate purchase and development. d. Conformance with BOCC Space Planning Principles — All criteria would be considered during the site identification and acquisition process. Attachment 5, "Development Options Decision Summary Table", outlines the recommended development option descriptions, comparative advantages, costs, and adherence to the Board adopted space criteria. Staff and representatives from HH Architecture will present the conclusions of the preliminary study as well as the recommended development options to the BOCC. FINANCIAL IMPACT: Regarding the EAC facility, the Board has appropriated $300,000 for professional engineering, site feasibility, and design work within the FY2015-16 Capital Investment Plan ("CIP"). This feasibility study amounts to $35,800.00; the designer will not be instructed to move forward in any further work until a development option is discussed and approved by the Board. The Board contemplates appropriating additional project funds of $3,149,000 during FY2017-18 for construction administration work of the designer, construction, and the acquisition of furniture, fixtures and equipment to complete the project. The total appropriated and contemplated project budget depicted in the FY2016-21 CIP is $3,449,500. Regarding the Park Operations Base, the Board contemplates appropriating $2,572,500 during FY2018-19 CIP for design and construction of the Park Operations Base at Blackwood Farm. Financial adjustments necessary within the CIP are previously outlined in the Comparative Advantages/Disadvantages above. 7 SOCIAL JUSTICE IMPACT: The following Social Justice Goals are applicable for this agenda item: • GOAL: FOSTER A COMMUNITY CULTURE THAT REJECTS OPPRESSION AND INEQUITY The fair treatment and meaningful involvement of all people regardless of race or color; religious or philosophical beliefs; sex, gender or sexual orientation; national origin or ethnic background; age; military service; disability; and familial, residential or economic status. • GOAL: ENSURE ECONIOMIC SELF-SUFFICIENCY The creation and preservation of infrastructure, policies, programs and funding necessary for residents to provide shelter, food, clothing and medical care for themselves and their dependents. • GOAL: ENABLE FULL CIVIC PARTICIPATION Ensure that Orange County residents are able to engage government through voting and volunteering by eliminating disparities in participation and barriers to participation. RECOMMENDATION(S): The Manager recommends the Board For receive the preliminary visioning and development option study regarding the Environmental and Agricultural Center (EAC) prepared by HH Architecture and indicate the preferred option(s): 1) Major EAC Renovations — Revere Road: Perform major renovations to the existing EAC facility at 306 Revere Road (see Attachment #2 for Revere Road EAC Site and Space Plans); • Additional CIP Funds Required: $235,000 2a) Build New EAC — Torain Street: Pursue a development plan and new construction of an EAC facility located on County owned Torain Street/Public Works Drive property (see Attachment #3 for Torain Street/Public Works Drive Aerial); • Additional CIP Funds Required: $1,008,500 2b) Build New EAC & Park Operations Center — Torain Street: Pursue a development plan and new construction of an EAC facility and a co-located Parks Operations Base located on the County owned Torain Street/Public Works Drive property; • Additional CIP Funds Required: $430,500 3) Build New — New Site: Explore and recommend to the BOCC other sites for development on the northern periphery of Hillsborough for either an EAC site or a co-located EAC/Parks Operations Base site. • Additional CIP Funds Required: Similar to 2a/2b plus land acquisition costs. Attachment 2 $ Fk,N_ -��Gn'4gtta ��9>Ff 9�'iDff 1 \ 1 0v4-AILL NAAUOA j �1 "\Mum y 1\1 uap.. � I u � y QI,k4F:f f41SIITy6 L21,�R^ ev;mM-R � .r „='•�., -i ¢eriia6>a�EL Pgficlnb 1� ps('1VAL �7; \ 44"�11'�,��.,iJW✓✓fJJ\W N GRAPHIC SCALE 3o rt rdcC \ NAS KW 0 40 80 160 FT �w 4 11 11 j�------ -� ORANGE COUNTY ENVIRONMENT&AGRICULTURAL CENTER OPTION 1-MAJOR RENOVATION ORANGE COUNTY CONCEPTUAL AN CONCEPTUAL SITE PLAN NORTH CAROLINA 31 ©2016 HH ARCHITECTURE 9 FED. ELEC. SERV. FOREST SERVICE SOIL&WATER STAFF BREAK FSA RODM CORE AND SHELL AREA MAINTAIN MAIN MDTHER's cusT. BUILDING ENTRANCE IN RI,DAAROM o LOUNGE FAMILY SIMILAR LOCATION REST. ° MAIN CORRIDOR LOBBY F lS I 21 6 I EAC CONFERENCE I ROOM A MEN'S WOMEN'S I RESTROOM RESTROOM FOOD LAB L------------------ I I I EAC CONFERENCE j ROOM B I I o 0 0 0 0 0 COOPERATIVE EXTENSION DEAPR CORE AND SHELL AREA LEGEND CORE AND SHELL AREA NOTE: DEPARTMENTAL"HOT"STORAGE RESIDES WITHIN THE SUITE EXISTING FOOTPRINT SF: 20,692 GSF FULL INTERIOR RENO: 15,602 SF COOPERATIVE FOREST SERVICE CORE AND SHELL: 5,090 SF EXTENSION DEAPR SHARED FACILITIES GRAPHIC SCALE SOIL&WATER MECHANICAUELECTRICAL Z FSA CIRCULATION 0 5 10 20 FT �_. ORANGE COUNTY ENVIRONMENT&AGRICULTURAL CENTER OPTION 1 -MAJOR RENOVATION ORANGE COUNTY 01/12117 CONCEPTUAL PLAN HH ARCHITECTURE NORTH CAROLINA 1/16"=T-D" 32 ©2016 HH ARCHITECTURE Attachment 3 10 Torain St / Public Works Dr Property 1111 ' TULIPTREE RD *1 tf'r * a 1 7- I ii ,,,..., , , ' - 411111116•11■ * 1 ,,...__ . 1,41,t5 ,. ... 1 ri. 11111■1 Liklik .faill111111■ -' z I I i , -�`" Protected Hardwood Area ,- 1, ! CLEOC)T miemmi TOWN OF . I a HILLSBOROUGH \ j ` I' lire ii j- I - 2 f4 I' I 1 _ _ ii!iii_ii .,Old Dump Site t°t . ...v . . iv, /<<. ,..4-$ of? , I'•.d.' - sli k PI 10%.' ,, '''' % 41, re < Ilk, Will ' '4 Fy 9 1 1 3 1 I I 0 1., , . - \ ,A.. .N.44; '''' ' GRAN C COUNTY o Lam �� X88 10R NGE Ce4,R ToY 4.4 ac. t.1. 57 OR' NGIA COUNTY " .r aC.---_,.RIUDLE AvE 4 =y Ir HO -Mo L / ry �E OR�ANG[ .. COUNTY ... `' i&93 arc , gm iii jRPERRD e . RENCHER ST TOWN OF Ili , '�°�• � " Protected Wooded Area ;; HILLSB-OROUGGO - '� ,`;,s � �, L AIN � ,, ,„,, 104,44FP-'.,....��o'c:. �� Alliii I i Protected Wooded Area ”., ...... 6 0, LAWNDq� ! ; NO -DRr IBS iiii , Alibi Vos/ , , li '-. v," ' ,• 1,n z Feasible Building Site Existing Water �► �' - ` ' - N 1 in=400 feet a' New Parking Lot Existing Sewer =, , `1 ' , t A 2 eet dl New Road Parcels 1 •,�.• Orange County Planning and Inspections Brian Carson(3/7/2017) 11 Attachment 4 Board Adopted Space Study and Utilization Criteria Board Adopted in 2001: 1. Co-location of departments with similar functions and/or those that serve the same customer base 2. Consolidation of County operations to as few sites as may be practicable in an attempt to gain operational efficiency and customer access 3. Owning facilities in which County operations are located, as opposed to leasing, except where there exists a compelling business reason to do so Board Adopted in 2005: 4. Building and maintaining facilities and spaces according to sustainable practices and high performance building standards (Board adopted Environmental Responsibility Goals) Board Adoption in 2013: 5. Evaluation of the relative cost and benefit of facilities use where those facilities are stressed —"fully and/or practically depreciated". This principle is necessary in order to manage the facility to its highest and best use while planning and providing for the potentially displaced space need. 12 1. Basis of Study: The study will include a review of the use of all County buildings, along with a description of the space needs of each County department and other users of County buildings (e.g. District Attorney). These assessments will serve as a fundamental work product and will form the basis for the scope of the study: a. Management and Staff Assessment and Input. The Metrics of this Assessment are as follows: i. Management evaluation and comment ii. Staff evaluation, collected and documented by the user questionnaire established in 2001 b. Physical Assessment and Inventory. The Metrics of this Assessment are as follows: i. Physical report (staff and consultant) ii. Maintenance and utility report (staff) iii. Identification of stressed and under-utilized assets iv. Valuation of stressed and under-utilized assets through a Net Present Value Calculation (staff) c. Departmental Space Needs Programming housed within stressed or under- utilized assets (staff and consultant) 2. Scope of Study: The scope of the study will be based upon the before-mentioned Basis of Study data, analysis, and conclusions and will be framed by: a. Space needs required no later than 2020; as well as beyond 2020—based upon: i. management and staff assessments, ii. facility assessments, iii. identified stressed or underutilized assets, iv. identified Board, management, and departmental needs; b. Board adopted strategic planning initiatives 13 3. Options and Recommendations: The criteria and decision factors for recommended space study action that are suggested for Board adoption are as follows: a. Making decisions based upon the before-mentioned guiding principles: o Consolidation o Centralization o Ownership o Sustainable building operation and programming o Cost and benefit analysis b. Minimizing under-utilized spaces c. Formulating reasonable, defensible courses of action for stressed facilities d. Providing exceptional facilities for County service delivery e. Meeting longstanding, publicly supported needs f. Recognizing, anticipating, and planning for growth (and contraction)trends 4. Timeline and Horizon: Staff will recommend space need prioritization, scheduling and funding sources to the Board for comment and adoption each fall prior to the annual Capital Investment Planning process. 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