HomeMy WebLinkAboutAgenda - 01-24-2005-6aORANGE COUNTY
BOARD OF COMMISSIONERS
ACTION AGENDA ITEM ABSTRACT
Meeting Date: January 24, 2005
Action Agenda
Item No. (0 -q
SUBJECT: Appropriation of Funding for Orange County Schools (OCS) Middle School #3
DEPARTMENT: Manager/Budget PUBLIC HEARING: (Y/N) No
ATTACHMENT(S):
Proposed Resolution
Proposed Capital Project Ordinance
1/21/05 Staff Memo re: Middle School #3
Construction Cost Assessment
Excerpt from 1/24/05 OCS Board Agenda -
Architect Letter re: Bid Tabulation
Comparison of MS#3 Costs to School
Construction Standards
INFORMATION CONTACT:
Rod Visser, ext 2308
Donna Dean, ext 2151
TELEPHONE NUMBERS:
Hillsborough
Chapel Hill
Durham
Mebane
732-8181
968-4501
688-7331
336-227-2031
PURPOSE: To consider a resolution and a revised capital project ordinance regarding
appropriation of additional funds for construction of Orange County Schools (OCS) Middle
School #3,
BACKGROUND: In November 2001, Orange County voters approved bond referenda that
included $18,5 million for the construction of a new middle school for the Orange County
Schools system. In early 2004, the Orange County Commissioners and Orange County Board
of Education approved a number of decisions and financial transactions that resulted in the
acquisition of approximately 100 acres of property between West Ten Road and Interstate
40/85 that will serve as the site for the new middle school and a multi-field soccer center, The
County has title to 34+ acres for the soccer center, and OCS has title to 66+ acres for the
middle school.
In October 2004, the County and OCS entered into an interlocal agreement that facilitated joint
development of the 100+ acres. The agreement was intended to promote collaboration, sharing
of facilities, and achievement of cost savings through economies of scale. For example, by
agreeing to have pre-grading work done on both sites simultaneously through a contract
administered by OCS, about a quarter of a million dollars in savings was realized.
At the October 19, 2004 meeting, the BOCC determined that it would be beneficial for a work
group comprised of County and OCS governing board representatives and staff to meet
periodically to develop recommendations regarding outstanding issues related to the middle
school and soccer center projects, including additional features (e.g. library space) that might
be able to be incorporated into the project at a later time, The work group met on January 18,
2005 to discuss primarily issues related to the middle school project budget and bids that OCS
2
received in December 2004 for the construction of the middle school. The group agreed that it
would address other outstanding issues in future meetings. The central consideration at
present is that in order for the middle school to open as planned in August 2006, construction
work must begin by mid-February 2005.
Directly related to that project timetable is the need for the Orange County Board of Education
to award construction bids and enter into appropriate contracts for the construction work. The
Board of Education's agenda for their meeting on January 24 includes action on those items.
The middle school project architects have noted since project inception that the $18.5 million in
bond funding would likely be inadequate to cover the costs of constructing a middle school
similar in size and scope to Smith, the most recently opened middle school in Orange County.
OCS Middle School #3 has been designed largely as a prototype of Smith (with some
differences) and is currently programmed at about 123,000 square feet, which is within the
parameters established in the BOCC's middle school construction standards. The design is
intended to incorporate a variety of aspects related to greenbuilding and smart growth
initiatives.
In Fall 2004, the project architect explained to the Board of Education that substantial increases
in the market rates for steel, concrete, fuel, and other construction related commodities would
likely be reflected in the construction bids. This prompted the Board of Education to request
that the Board of Commissioners consider appropriating additional capital funding for the middle
school project sufficient to preclude any further reductions to the contemplated 123,000 square
foot design.
The BOCC tasked County staff to conduct an independent assessment of factors affecting the
school construction project costs. Their analysis and findings are provided in an attached
narrative and associated spreadsheet, and will be explained by staff during the BOCC's January
24 meeting.
In accordance with the BOCC's November 2000 "Policy on Planning and Funding School
Capital Projects", OCS is requesting that the Board adopt a revised capital project ordinance
that would appropriate funds for the balance of the project. Under the policy, Middle School #3
qualifies as a Level 2 project, which is structured in four phases. The project is now at the
Design and Construction Phase, which includes final design, facility construction and purchase
of equipment, furnishings, technology, and one-time start up items. The remaining phase, the
Final Accounting Phase, comes at project completion and provides a reconciliation of actual
project expenditures with the approved project budget.
As noted in the attached January 24, 2005 OCS agenda item, the Superintendent is
recommending that the Board of Education award a total of multi-prime base bids and
recommended alternates in the amount of $18,273,846. That amount, if approved, would bring
the total estimated Middle School #3 project cost to $22,608,091. The BOCC has allocated the
previously mentioned $18.5 million in general obligation bonds towards the project cost. OCS
has also identified $350,000 of its own funds ($300,000 from sales tax reimbursements and
$50,000 from the North Carolina Department of Transportation) to help pay for the project. The
BOCC has previously appropriated, through the Soccer Superfund Capital Project Ordinance,
$237,525 to pay for the County's share of the pre-grading/sitework being administered by OCS
for the middle school and soccer center sites..
3
With the $19,087,525 in earmarked funding noted immediately above, and the estimated total
Middle School #3 project cost of $22,608,091, there remains a project budget gap of
$3,520,566 for the Board of Commissioners to consider funding. Representatives of OCS and
the architectural firm Corley Redfoot Zack will attend the January 24 BOCC meeting to address
any questions about project design, bids, or overall costs, The Superintendent's response to
the County Manager's inquiry about what other sources or capital project realignments might be
considered to produce additional Middle School #3 project funding will be reviewed January 24.
In December 2004, the Board of Commissioners indicated its intent to reallocate some or all of
$12.8 million in anticipated debt for Chapel Hill-Carrboro Elementary School #9 to help address
anticipated cost overruns for Middle School #3, CHCCS High School #3, County senior centers,
or other projects. The main decision for the BOCC at this January 24 meeting is whether it
wants to appropriate all or a portion of the $3,520,566 funding gap outlined above. The
Board's decision on this matter directly affects the action that the Orange County Board
of Education will take later in the evening on the middle school bid awards and
contracts, as the amount they can approve for construction contracts depends on the
amount of funding appropriated by the BOCC by capital project ordinance. The attached
capital project ordinance contemplates approval by the BOCC of the entire additional amount of
$3,520,566. However, the BOCC is under no obligation to appropriate that much, and the
capital project ordinance can be revised at the BOCC meeting if necessary to reflect whatever
additional amount of funding the BOCC approves.
A number of outstanding issues remain to be resolved at some point in the future, but need not
be resolved on January, 24. For example, the work group plans to address at a future meeting
ideas that have been generated regarding how to manage approximately 25 acres of OCS
owned property that were not included in the school site footprint but which are in fact needed
to meet impervious surface limitations under the existing project concept. County and school
staffs will be exploring how conservation easements might be employed and will address with
the work group any financial transactions, if any, that might be warranted in the future regarding
these 25 acres, The work group recommends that the Board include in whatever additional
appropriation it decides to make for the middle school project an amount that will cover the
$271,000 difference between the $524,000 initially budgeted for land acquisition and the
$795,000 that was actually paid for 66+ acres. Also, it should be noted that the costs of
providing water and sewer service to the school property line are NOT included in the middle
school project budget. Utility extensions are being worked on by County staff in collaboration
with the City of Mebane, and costs for these are to be addressed through bond, grant, or
otherwise funded appropriations that the BOCC will address at a later date, Finally, OCS
representatives noted during the recent work group meeting that the identified total project
budget does not address all one-time start up costs or any ongoing startup costs for Middle
School #3, nor does it consider decisions that OCS will need to make in the future about
comparability of facilities between this new middle school and the two existing middle schools.
FINANCIAL IMPACT: As described in the "Background" section of this abstract, It should be
noted that any debt issuance must receive formal approval from the North Carolina Local
Government Commission, Staff expects that alternative financing for additional costs for Middle
School #3 will receive LGC approval when presented, as the additional debt involved remains
within the County's self-imposed debt management parameters and would be issued in lieu of
other debt on the BOCC-endorsed Debt Issuance Schedule, which has previously been shared
with LGC staff.
RECOMMENDATION(S): The Manager recommends that the Board adopt the accompanying
resolution indicating the intent to provide additional funding for Orange County Schools Middle
School #3 and adopt a revised Middle School #3 capital project ordinance that appropriates the
level of additional funding approved by the Board.
DRAFT
ORANGE COUNTY BOARD OF COMMISSIONERS
5
A RESOLUTION OF INTENT TO APPROPRIATE ADDITIONAL FUNDS FOR
CONSTRUCTION OF ORANGE COUNTY SCHOOLS MIDDLE SCHOOL #3
WHEREAS, the Orange County Board of Commissioners and Orange County
Board of Education have agreed to collaborate in the development of a new
middle school and a new multi-field soccer complex on approximately 100 acres
of property located between West Ten Road and Interstate 40/85; and
WHEREAS, the Orange County Board of Education has approved a design for
the middle school that is based on a prototype of the Smith Middle School
constructed several years ago in the Chapel Hill-Carrboro School system; and
WHEREAS, at approximately 123,000 square feet, the planned size of Middle
School #3 falls within the parameters established in the Board of Commissioners'
1996 adopted middle school construction standards; and
WHEREAS, the current estimated total project cost for Middle School #3, based
on construction bids received by the Orange County Board of Education in
December 2004 is $22,608,091; and
WHEREAS, earmarked County and OCS revenue for the project, including $18
million in voter-approved general obligation bonds, is $3,520,566 less than the
currently estimated project cost; and
WHEREAS, the Board of Commissioners in December 2004 indicated its intent
to redirect (with subsequent replenishment) some or all of planned alternative
financing debt of $12.8 million for Chapel Hill-Carrboro Elementary, School #9 to
address more pressing financial needs for OCS Middle School #3, CHCCS High
School #3, County senior centers, or other projects;
NOW, THEREFORE, BE IT RESOLVED THAT the Orange County Board of
Commissioners does hereby indicate its intent to appropriate $ in
additional funding for the construction of Middle School #3, with said
appropriation to be incorporated in and executed by Board of Commissioner
adoption of an updated capital project ordinance for Orange County Schools
Middle School #3.
This, the 24th day of January, 2005.
DRAFT
Middle School #3
Orange County Schools
Capital Project Ordinance
Be it ordained by the Orange County Board of County Commissioners that pursuant to Section 13.2 of
Chapter 159 of the General Statutes of North Carolina, the following capital project is hereby adopted.
Section 1. The project authorized provides funds for the Orange County Schools to obtain options to
purchase property for and to design, construct, and equip a new middle school facility.
Anticipated revenues for the project consist primarily of 2001 voter approved bond funds,
with private placement financing as well.
Section 2. The officers of the County are hereby directed to proceed with the project within the budget
contained herein.
Section 3. The following County revenue is anticipated to complete this project:
roug
2003-04
FY 2004-05 roug
2004-05
Sales Tax $0 _ $0 $0
School Construction
Im act Fees
$0
$0
$0
Public School Building
Funds
$0
$0
$0
2001 Bonds $825,005 $17,674,995 $18,500,000
Private Placement Loa $0 $3,520,566 $3,520,566
Total County Funding $825,005 $21,195,561 $22,020,566
Section 4. The following amount is appropriated for this project:
Myo gh FY
200304
FY2004-05 Though FY
200405
Corlstrudjcn $0 $15,909,959 $15,909,959
SStePcgtisilicn $775,005 $0 $775,005
e usl on
(SalslM erialsTesting,
$20,000
$0
$20,000
Site Development $0 $2,485,602 $2,485,602
Fees Ar? gn $30,000 $1,085,000 $1,115,000
M>eable Rl ipment $0 $600,000 $600,000
TedT dopy $0 $650,000 $650,000
on
03ritingemy
$0
$465,000
$465,000
One-Tirre Start Up Costs $0 $0 $0
Tats Costs $825,005 $21,195x561 $71,020,566
DRAFT
7
Section 5. In addition, the Orange County Board of Education plans to appropriate the following
revenues to the project to cover construction costs.
nrough FY
2003-04 ---
FY 2004-05 i roug
2004-05
Sales Tax Refunds $0 $300,000 $300,000
NCDOT Grant $0 $50,000 $50,000
Total Board 61
Education Funding
$0
$350,000
$350,000
Section 6. The cost to site and construct Orange County Schools Middle School #3 totals $22,608,091
County 2001 OCS Middle
School #3 Bond Funds $825,005 $17,674,995 $18,500,000
Fund Bonds (to cover site
development costs for West 10
Soccer Complex co-located at
the Middle School #3 site $237,525 $0 $237,525
Orange County Private
Placement Funding $0 $3,520,566 $3,520,566
School Board Funds $0 $350,000 $350,000
Total oar o Education
Funding $1,062,530 $21,545,561 $22,608,091
Section 7. This ordinance supersedes all previous Orange County Schools Middle School #3 capital
project ordinances.
Section 8. This capital project ordinance, originally adopted March 4, 2004, shall remain in effect
through June 30, 2007.
Adopted this 24th day of January 2005,
MEMORANDUM U
T0: Board of County Commissioners
John Link, County Manager
FROM: Pam Jones, Purchasing and Central Services
RE: Orange County Schools Middle School #3 Construction Cost
Assessment
DATE: January 21, 2005
As you may recall, OCS Middle School #3 was one of two schools for which
Commissioners requested that Paul Thames and Pam Jones review plans and
identify cost elements with significant cost increases. The review of the major
construction elements for OCS Middle School #3 revealed no appreciable
deviations from expected construction cost escalation within major building
construction elements, with the exception of items such as structural steel, steel
reinforcing, metal roofing, concrete and other masonry, which has increased
almost 50% over the past four years. Further, according to construction data
provided or published by the NC Department of Public Instruction (NCDPI),
school construction costs for calendar years 1996 through mid-2004, increased
by an average of 35% for all schools statewide. NCDPI data also indicate that
much of this increase (approximately 19%) has occurred in the 2003 - mid-2004
interval.
You will note that if the 35% "inflation" factor were applied to the Orange County
School standards square footage costs (created and adopted in 1996), the 2004
cost per square foot would calculate at $128.25 per square foot. The square foot
costs calculated from the bids received on December 7, 2004 would be
approximately $132.45, approximately 3% over the present value school
standards. While the source of this 3% over the standards present value cost was
not readily apparent, it was noted that the standards include limited, if any, green
building components. Green building adds value and has a payback for the long
term; however, some elements have an identifiable up front cost in excess of
traditional building methods, At a minimum, $80,000 of "green components"
can be identified in the 12/7/04 bid alternates through such things as solar
water heating system and photovoltaic system. These items are recommended in
the bid award amount and are calculated in the $132.45 square foot cost cited in
the attachment.
For your information, the attached spreadsheet compares construction standards
cost, to the present value of the construction standards cost, as well as the
preliminary cost projections provided by the architect in September 2003, the
updated projections based on the final program of the school in September 2004
and the actual bids received on December 7, 2004.
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CORLEY REDFOOT ZACK INC ) D
A R CHITE.C TS • ENGINEERS - PLA N N ERS
December 15, 2004
Dr. Shirley Carraway, Superintendent
Orange County Schools
200 East King Street
GLENN D. CORLEY,AIA Hillsborough, NC 27278
President, CEO
KENNETH E. REDFOOT,AIA RE: Middle School #3
Vice President West Ten Road, Orange Co.., NC
MARK ZACK, AIA Project #0310
Vice President BID TABULATION
MICHAELL, HAMMERSLEY,PE
Principal Dear Dr. Carraway:
LAURENCEW. RUNCH,AIA
Associate In accordance with your request, I am sending you the certifi ed bid tabulation
ANDREW R. CRUICKSHANK, AIA for the above-referenced project. Bids for a single prime and for multi-prime
Associate contracts were opened at 4:00 PM, on December 7, 2004, at the School Board
DAVID M. TAYLOR, AIA building in Hillsborough, NC.
lssociate
HARRY M. JENSEN Listed below are the apparent low multi-prime bidders, based on their Base
Associate Bids and the Alternates which were reviewed and approved i n our discussions
KENNETH E. SMITH with you and George McFarley, Jr., on December 14, 2004:
Associate
A. General Construction: J. H. Allen , Inc.
409 W. Central Avenue (27203)
PO Drawer 2809
Asheboro, NC 27204
Base Bid: $13,445,000
Alt. #3: Front entrance canopy 108,000
Alt, #4: Photovoltaic system/power storage/-
PO Box 2368 distribution system 5,300
Chapel Hill, NC 27515-2368 Alt. #5: Solar water heating system 9,700
Alt. #15: Use specific brands for kitchen equipment no change)
222 Cloister Court Total Base Bid + accepted
alternates:
$13
568
000
Chapel Hill, INC 27514-2212 ,
,
B. HVAC Contractor: Indicor
1217 Rail Street (27407)
PO Box 8794
Greensboro, NC 27419
Base Bid: $ 1,849,000
Alt. #9: HVAC Equipment by Trane: $ No change
Alt. 410: Boilers by Weil McClaim with
Webster Burners: $ No change
Alt. #11: HVAC Pumps by B&G: $ 8,000
(919) 942-8586 Telephone Alt. #12: HVAC Control by Invensys
(919) 929-4802 Fax supplied by Yamas: $ 88,000
Total Base Bid + accepted Alternates: $ 1,945,000
Dr. Shirley Carraway
RE: Middle School #3 Bid Tabulation
C Electrical Contractor:
Starr Electric Co., Inc.
6 Battleground Court
Greensboro, NC 27408
December 15, 2004
page 2
Base Bid: $ 1,649,000
Alt. #3: Front Entrance Canopy: $ (8,600)
Alt. #4: Photovoltaic system/power
storage/distribution System $ 14,000
Alt. #13: Security System by Ademco: $ No chance
Total Base Bid + accepted Alternates: $ 1,654,400
D. Plumbing Contractor: ABL & Associates Plumbing, LL.C
300 Hoke Street
Raleigh, NC 27601
Base Bid: $ 1,050,899
Alt. #5: Solar Water Heating System: $ 51,728
Alt. #3: Canopy Roof Leader: $ 3,819
Total Base Bid + accepted Alternates: $ 1,106,446
TOTAL MULTI-PRIME BASE BIDS AND RECOMMENDED ALTERNATES: $18,273,846
Summary: General Construction: $13,568,000
HVAC: 1,945,000
Electrical: 1,654,400
Plumbing: 1,106,446
$18,273,846
The above construction bids, added to the early sitework package contract (presently under
construction) and the playing field and irrigation work (contract pending), equals $18,983,091. On
September 9, 2004, we presented to the School Board an estimate of $18,826,700 for the same scope
of work. The difference between the estimate and the actual bid is less than 1%, which confirms the
timeliness and accuracy of the estimate.
Based on this information, we recommend moving forward with preparation of contracts for the
new middle school for the Orange County Board of Education.
Please contact me if you have any questions or comments.
Sincerel ,
i vl'?
e th edoot,
ice President
KER:esw/0310-bid. rec
cc: George McFarley, lr.
\111
CORLEY REDFOOT ZAIX,?
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