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HomeMy WebLinkAboutAgenda - 09-04-2001-9bORANGE COUNTY BOARD OF COMMISSIONERS ACTION AGENDA ITEM ABSTRACT Meeting Date: September 4, 2001 ' Action Agenda Item No. ~~~ SUBJECT: Hillsborough Judicial Facilities Expansion Planning Process DEPARTMENT: Purchasing and Central PUBLIC HEARING: (Y/N) No Services ATTACHMENT(S): INFORMATION CONTACT: Pam Jones (919) 245-2652 TELEPHONE NUMBERS: Hillsborough 732-8181 Chapel Hill 968-4501 Durham 688-7331 Mebane 336-227-2031 PURPOSE: To consider approving a planning process to be used in the Design/construction of the Justice Facilities Expansion Project. BACKGROUND: Original Justice Facilities Study In 1994, the Orange County Board of Commissioners appointed a group to study the long-term needs of justice facilities in Orange County. All judicial functions within the County were represented in the Justice Facilities Study Group. The results of their efforts were reflected in a report published in July 1995. Efforts to Address Most Critical Needs The scope of the long-term needs as identified by the Group were extensive. The County's ability to undertake expansion of this magnitude was limited. To that end, components exhibiting the greatest need were considered separately and two projects specific to those needs initiated. - • The Jail Expansion project completed in early 1998 added 58 beds to the existing 71, thereby raising the total capacity in the jail to 128. Although capacity of the Jail is inadequate for the long-term, cooperation between the Sheriffs Department and judges has served to minimize overcrowding. The Federal Marshal continues to use the Orange County Jail as a major depot for prisoners. • The addition of the Gordon Battle Courtroom in early 1998 allowed the heavier volume District Court to utilize the large courtroom on the main floor as its primary court location. A greater flexibility in scheduling various courtrooms was agreed to among the judges, thereby allowing a more efFcient use pattern of all courtrooms. A second group of Judicial Officials and County staff were convened later in 1998 to evaluate the impact of these two expansions. Although these changes may have negated the need for further expansion for up to a decade, the group agreed that the long-term need still exists and that a proactive approach to development was critical. Hillsborough Justice Facilities Campus Master Plan In 1999, the County Commissioners commissioned Freeman-White Architects, Charlotte to produce a site plan that reflected the total build-out capability of the site. The results of this report, presented in April 2000, outlined two options, one of which would allow approximately 96,000 additional square feet of building (Option A), the other approximately 105,600 square feet (Option B). It is important to note that the study defined the scope of the master plan site to be only the area between the Government Services Center to the east, the Courthouse to the west, Margaret Lane to the north and the edge of the existing parking lot to the south. Each option defined building construction in four phases. Option A incorporated the parking deck into the courthouse construction, while Option B developed a 5 level free-standing parking structure in the approximate location of the existing SherifF's Department. At the request of the County Commissioners, the Master Plan was also presented to the Town of Hillsborough Commissioners in June 2000. Concerns raised by both Boards were similar, examples of which include the following: • Parking sufficiency and location; • Concern about losing the vista from Margaret Lane into River Park; and • Scale of the proposed buildings in relation to the existing structure; and • Farmer's Market location. In an effort to further clarify the challenges associated with development of a court facility on Margaret Lane, two Commissioners, two Judges and County staff met with representatives from the Town of Hillsborough, the Historic Alliance, the Tourism -Board and local citizenry. While there is general consensus that development can occur on the site, there is significant concern that it be done in a manner that embraces a strong sensitivity to historical context of the community as well as the resulting environmental impacts. These concerns will be reflected in the criteria used in the selection of a design firm. Pro osed Ex ansion of the Master Plan Since the. completion of this Master Plan, the Board has received recommendations regarding future development of County Government buildings in the immediate vicinity. Several issues were raised during those discussions, including the potential that a parking deck could be located closer to the Government Services Center rather than being built as part of the Courthouse Project. Regardless of whether that should be the case, it is a forgone conclusion that the design outcome for both facilities will tae more effective if their needs are considered in tandem. For example: • The facilities will have similar parking needs; •. Pedestrian and Vehicular circulation from one site to the other should be considered; • Should the Board choose to site a Farmer's Market on this site, it should be sited with considerations of both facilities in mind. Because of the close interaction of the two potential expansions in the Downtown Hillsborough area, it is recommended that the scope of work for architectural services for the Courthouse design be expanded to integrate all County land that lies: • South of Margaret Lane. • East of Churton Street • West of Cameron Street • North of the Eno River Upon Board confirmation, the following assumptions regarding the use of the land would be cited to the architect: • The area that is presently River Park land would remain dedicated to park/open space, with extremely minimal, if any encroachment by parking. • The area that is presently River Park could be utilized for part or all of a Farmer's Market Facility, if the final design indicated that to be the optimal location. • The building in which the Sheriff's Department is located should be left intact if at all possible. (The Court Campus Master Plan recommends its removal.) • The Occaneechi Indian Village remains as is. • A multi-level parking deck remains an acceptable solution to providing adequate parking to the area. The revised master plan would be presented to the Board for approval before commencement of the actual design process for the Courthouse. Should the Board so direct, the firm who produced the Court Campus Master Plan could be contacted regarding availability for the expanded plan and a contract for such presented to the Board for consideration in the near future. Proposed Planning Process Following the approval of the proposed expanded site master plan, the Justice Facilities Expansion Project, as endorsed by the County Commissioners should move forward. The process listed below is recommended in order to incorporatE the interests of various stakeholders at the appropriate times throughout the planning process. The individuals listed are recommended based on their expressed interest, specific area of expertise and/or previous involvement in the process. The process has been compartmentalized into the following segments: • Selection of Design Firm • Programming: Interior • Programming: Exterior (includes River Park area) Selection of the Design Firm Scope of Work: Appointees to this group would be responsible for the fallowing: • Approving the criteria whereby the firms will be evaluated; • Reviewing the Requests for Proposal submitted by the various firms and creating a short-list of firms that appear to best meet the project needs; • Interviewing the firms placed on the short list (generally no more than six); • Recommending the preferred design firm for Board of Commissioner consideration. Recommended appointees: Mark Sheridan, Town of Hillsborough Commissioner and Tourism Board member • Susan Frankenburg, Alliance for Historic Hillsborough • Cathleen Turner, Alliance for Historic Hillsborough • Todd Dickinson, Historic Preservation Architect • 2 County Commissioners • SherifF Lindy Pendergrass 4 • John Link, County Manager • Wade Barber, Superior Court Judge • Joe Buckner, Chief District Court Judge • Jamie Stanford, Clerk of Court • Pam Jones, Orange County Director of Purchasing and Central Services • David Stancil, Orange County Director of Environment and Resource Conservation Department Programming; Exterior Scope of work: This task group will. be responsible for working with the designer to design a building that meets the community concems about the appearance of the building and the user's concerns about the access, parking, etc. This group will also provide design direction regarding River Park and the functional melding of the building with the Park. The task group's recommendations will be brought forward for County Commissioner consideration. Recommended Appointees: • Mark Sheridan, Town Commissioner and Tourism Board member • Margaret Hauth, Town of Hillsborough Planning Director • Susan Frankenburg, Alliance for Historic Hillsborough • Todd Dickinson, Historic Preservation Architect • Cathleen Turner, Alliance for Historic Hillsborough • Norman White, Landscape Architect • David Stancil, or designate • 2 County Commissioners . • Judge Wade Barber - • Judge Joe Buckner • Jamie Stanford, Clerk of Court • Sheriff Lindy Pendergrass • Carl Fax, District Attorney • John Link, County Manager • Pam Jones Further, in order to ensure the involvement of all stakeholders, input will be solicited at the appropriate time in the exterior design process from groups representing the interests of the Occaneechi Indian Village and the Farmers Market, among others. Pro rammin :Interior Scope of work: The scope of the project originally defined in the master plan included approximately 30,000 square feet of space to accommodate at least the following functions: • New entrances for public and staff with the public entrance designed to be a secure entrance; • Offices for the Sheriff's Department; • Offices for the Clerk of Court to relocate from leased space; • Expansion for judicial functions presently located in the building. Appointees within this category will work with the design team to ensure that the functional needs of the proposed occupant departments are met. The task group's recommendations will be brought forward for County Commissioner consideration. Recommended Appointees: • Judge Wade Barber • Judge Joe Buckner • Jamie Stanford, Clerk of Court • Carl Fox, District Attorney • Sheriff Lindy Pendergrass • 2 County Commissioners • John Link, County Manager • Pam Jones Input from other building users, such as the Public Defender, Probation/Parole, the 15B Bar Association, etc. will be solicited at appropriate times during the design process as well. Upon Board approval of the process, the Request for Proposal for architect selection will be prepared and solicited during the Fall, with a recommendation from the selection committee anticipated by the end of January 2002. FINANCIAL IMPACT: The indirect effect of approval of this matter is as follows: • Cost of construction for building only is estimated at $6 million. This cost would be funded through alternative funding mechanisms, such as Certificates of Participation (GOPs) or a private placement loan. • Although design considerations for River Park will be included in the scope of this work, any recommendations regarding the actual development would be considered as a separate cost item. • Cost of design far the building only is estimated at 10-12% of construction cost or approximately $600,000-$700,000. These funds have been appropriated over the past two years in the Capital Investments Plan (CIP). If approved, cost for the expanded site master plan would also be charged against these funds. 5peci~c cost implications for each of these activities will be presented for Board approval as they become known. RECOMMENDATION(S): The Manager recommends that the Board: • Approve the expanded master plan work and authorize the Director of Purchasing and Central Services to negotiate a contract for Board approval with Freeman-White Architects; and • Endorse the proposed planning process; and • Make appointments to the. three task groups as indicated above, including the designation of two County Commissioners who will serve; and • Authorize the Director of Purchasing and Central Services to solicit proposals for design services for the Justice Facilities Expansion Project, Phase I.