HomeMy WebLinkAboutAgenda - 04-04-2023; 6-a - Presentation of Manager’s Recommended FY 2023-33 Capital Investment Plan (CIP) 1
ORANGE COUNTY
BOARD OF COMMISSIONERS
ACTION AGENDA ITEM ABSTRACT
Meeting Date: April 4, 2023
Action Agenda
Item No. 6-a
SUBJECT: Presentation of Manager's Recommended FY 2023-33 Capital Investment Plan
(CIP)
DEPARTMENT: County Manager's Office
ATTACHMENT(S): INFORMATION CONTACT:
Attachment 1. County Manager's CIP Bonnie Hammersley, County Manager,
Transmittal Letter (919) 245-2300
Travis Myren, Deputy County Manager,
UNDER SEPARATE COVER (919) 245-2308
Attachment 2. FY 2023-33 Capital Kirk Vaughn, Budget Director, (919)
Investment Plan 245-2153
Presentation
Attachment 3. Manager Recommended
FY 2023-33 Capital
Investment Plan
Attachments 2 & 3 To Be Provided Prior
to or in Conjunction with the Meeting;
Will also be Available Electronically at:
https://www.orangecountync.gov/budget
PURPOSE: To receive the Manager's Recommended FY 2023-33 Capital Investment Plan.
BACKGROUND: Each year, the County produces a Capital Investment Plan (CIP) that
establishes a budget planning guide related to capital needs for the County and Schools. The
10-Year CIP is evaluated annually to include year-to-year changes in priorities, needs, and
available resources. Approval of the CIP commits the County to the first year funding only of the
capital projects; all other years are used as a planning tool and serves as a financial plan.
Capital Investment Plan — Overview
The FY 2023-33 CIP includes County Projects, School Projects, and Proprietary Projects. The
School Projects include Chapel Hill-Carrboro City Schools, Orange County Schools, and
Durham Technical Community College — Orange County Campus projects. The Proprietary
Projects include Water and Sewer, Solid Waste Enterprise Fund, and Sportsplex projects.
The CIP has been prepared anticipating moderate economic growth of approximately 2% in
property tax growth and 4% in sales tax growth annually over the next ten years. The CIP will
rely substantially on debt financing to fund the projects and these required debt amounts are
fully integrated in the County's Long-Term Debt Model.
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FINANCIAL IMPACT: There is no immediate financial impact associated with the presentation
of the FY 2023-33 Capital Investment Plan. It is a long-range financial planning tool with a
financial impact in Year 1 (FY 2023-24), if the first year of the CIP is approved by the Board of
County Commissioners with the adoption of the Annual Budget.
SOCIAL JUSTICE IMPACT: There are no Orange County Social Justice Goal impacts
associated with this item.
ENVIRONMENTAL IMPACT: There are no Orange County Environmental Responsibility Goal
impacts associated with this item.
RECOMMENDATION(S): The Manager recommends the Board receive the presentation of the
Manager's Recommended FY 2023-33 Capital Investment Plan and provide direction to staff in
preparation of the April 11, 2023 Budget work session.
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Attachment 1
ORANGE COUNTY
NORTH CAROLINA
April 4, 2023
TO: Board of Orange County Commissioners
FROM: Bonnie Hammersley
County Manager
Travis Myren
Deputy County Manager
RE: Manager's Recommended FY2023-33 Capital Investment Plan
We are pleased to submit the County Manager's Recommended Capital Investment Plan (CIP)for
FY2023-33 for your consideration. This CIP advances the Board's priorities in educational
facilities, climate change mitigation and environmental sustainability, access to behavior health
services, and financial resources to assist in the development of affordable housing. The FY2023-
33 CIP also invests in the County's core services with improvements in public safety software,
public safety communications, and County facility maintenance.
The CIP forecasts capital projects over a ten year period. Although the Board only appropriates
funding for projects in the first year of the Plan, the CIP is a planning tool that also focuses on
future needs and the financial capacity required to meet those needs. As these needs are
enumerated in future years of the Plan, the County is able to employ a debt modeling tool to
project debt service requirements and monitor compliance with the County's debt to revenue
policy over the full ten year planning horizon. The debt service to revenue policy measures the
County's ability to pay these annual installments relative to the amount of revenue forecasted.
The County's current debt policy target is fifteen percent (15%) of general fund revenues. Based
on the projects recommended in FY2023-24, that policy target is achieved at 13.65%.
The debt service to revenue metric is also used by credit rating agencies to assign a credit rating
when the County issues new debt. Based on the County's thoughtful approach to debt financing
and comparably resilient economy, the County has been assigned the highest credit rating (AAA)
by three rating agencies for the past nine (9) years. This rating secures the lowest possible
interest rates and, therefore, the lowest cost of borrowing in the bond market.
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Projected debt service ultimately manifests in a tax rate equivalent to pay the annual installments
on borrowing. Based on the Recommended FY2023-33 CIP, a tax rate increase of 2.85 cents
would be required in FY2026-27, and an additional 1.75 cents would be required in FY2028-29
assuming that all of the planned projects are executed as scheduled in the Plan.
In addition to projecting future debt service payments, the CIP also identifies how capital
investments are expected to impact the operating budget. New infrastructure often comes with
staffing, operating, and maintenance costs that impact the operating budget. The FY2023-33 CIP
tracks operating costs for individual projects as well as a summary table showing the cumulative
impact over the planning horizon so that decisions on capital spending are fully informed.
This CIP also includes $4.3 million in pay-as-you-go or cash funded investments in the first year
of the plan for design and architectural services as well as small capital items with short useful
lives to conform to best practices. The long range debt model assumes an annual increase of
$500,000 in cash funded investments as a way to increase debt capacity for school capital needs.
The first year of the Recommended CIP totals $53.4 million in capital investments. Of this
amount, $23.9 million is recommended for County capital projects, $3.6 million is recommended
for proprietary fund spending including Solid Waste, and Sportsplex, $15.5 million is
recommended for capital improvements to educational facilities, and $10.5 million is programed
to fund an expansion of the building serving the Orange County Campus of Durham Technical
Community College.
The recommended FY2023-33 CIP represents an increase of approximately $12.8 million
compared to the FY2022-32 Approved CIP. This increase is primarily attributable to the Durham
Tech expansion moving into Year 1 of the plan and the addition of$2.1 million for the design of
a Crisis Diversion Facility.
The balance of this memorandum describes projects supported by the General Fund that are
recommended in the first year of the FY2023-33 CIP as well as any significant changes that are
recommended for consideration in future years.
Education Capital Improvements
The FY2023-33 Recommended CIP includes a total of $26 million to finance a variety of school
capital improvements and to expand the facility on the Orange County Campus of Durham
Technical Community College.
• Annual School Facility Repair and Improvement Projects - $11.5 million
The CIP includes annual allocations for school repair and improvement projects in each year
of the plan. For FY2023-24, the annual allocation is $11.5 million. This annual allocation is
used to fund a variety of smaller scale capital improvements in schools ranging from
accessibility and classroom improvements to technology and sustainability projects. This
allocation is financed by a mix of sources including general fund pay-as-you-go funding, debt
financing, additional pay-as-you-go (from lottery proceeds), and Article 46 sales tax proceeds.
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The Plan assumes that the amount of debt financing increases by 2% each year while the
amount of Article 46 proceeds increases by 4% annually.
• Supplemental Deferred Maintenance - $4 million
The Supplemental Deferred Maintenance Program was started in FY2020-21 to address
deferred maintenance and life and safety improvements in school facilities. The program was
designed to finance $30 million in school projects over three years on a schedule and
sequence determined by the Districts. A second $30 million was authorized in FY2022-23 for
a total authorization of$60 million intended to address deferred maintenance needs.
Both installments of supplemental deferred maintenance were divided between the Districts
using the average daily membership percentages at the time of the authorization. When
combined, Chapel Hill-Carrboro City Schools has been allocated $35.7 million while Orange
County schools has been allocated a total of $24.3 million. To date, the Districts have
requested and the County has authorized $26.8 million that is available for immediate
expenditure. The balance of the funds have been scheduled over the next three years.
Chapel Hill-Carrboro City Schools has scheduled an additional $4 million in FY2023-24
followed by two additional installments of approximately $9 million in FY2024-25 and
FY2025-26. Orange County Schools has scheduled $11.1 million in FY2024-25. These
authorizations will complete the total $60 million commitment by the County.
• Planning for a General Obligation Bond
Following the direction provided by the Schools Capital Needs Task Force, the County has
worked with School District staff to retain a school capital planning consultant. The
consultant will, among other deliverables, complete a comprehensive review and analysis of
school capital needs.
The FY2023-33 CIP continues to reserve $130 million in general obligation bond proceeds for
school capital needs. The CIP recommends authorizing$5 million in planning funds in FY2025-
26 followed by a tranche of $40 million in FY2026-27, $45 million in FY2028-29, and an
additional $40 million in FY2030-31. As other authorized projects proceed or are delayed and
the tax base increases, the capacity for a school facility bond may increase. The debt model
will measure that capacity as the date to make final decisions on the bond amount nears.
• Orange County Campus — Durham Technical Community College — Existing Facility
Expansion - $10.5 million
Durham Technical Community College has revised its approach to expanding the Orange
County Campus. The prior strategy featured a new, stand-alone building for allied health
instruction. Since that time, Durham County included an Allied Health facility as part of its
bond referendum to expand the Durham Campus.
The FY2023-24 CIP includes a $10.5 million expansion of the existing building on the Orange
County campus. This funding would add 13,000 - 18,000 square feet to expand space for the
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Emergency Medical Services program, Health and Wellness, Skilled Trades, Back to Work and
Small Business Center, student study areas, and student support offices.
County Assets
The FY2023-33 CIP is continuing to recommend repair and critical maintenance of County
facilities and infrastructure. Many of the County maintenance and repair projects throughout
the ten year plan were recommended through a Facility Condition Assessment. As a precursor
to the Facility Master Plan, the County retained a consultant to perform a detailed Facilities
Condition Assessment of each County owned facility. This Assessment identified and prioritized
the replacement of heating and cooling equipment, building fagades and windows, electrical
systems, and roofing and created a ten year replacement schedule for each category based on
existing conditions, age, and expected useful life. These investments are intended to improve
resiliency, extend the life of facilities, and improve service delivery to residents.
• Behavioral Health Crisis Diversion Facility Design - $2.1 million
The Board of Commissioners have prioritized access to behavioral health services. During
FY2022-23, the County has been working with an architect and an operations subject matter
expert to conduct preliminary planning and cost estimation for a Behavioral Health Crisis
Diversion Facility. This preliminary planning work has culminated in the conceptual design of
an approximately 29,000 square foot facility carrying a total project cost of approximately
$25 million. The FY2023-24 CIP is recommending to proceed with design services at a cost of
$2.1 million or ten percent (10%) of the cost of construction which is a standard metric used
to estimate design costs. The project team is also developing operating cost estimates so
that the Board can make a fully informed decision about whether to move forward with the
design funds.
The facility is intended to divert individuals experiencing a behavioral health crisis from
hospital emergency departments and the County's Detention Center. The facility will offer
two primary services. First, it will offer Behavioral Health Urgent Care services for
assessment, stabilization, treatment, and aftercare planning for patients 4 years old and
older. The facility will also house Facility Based Crisis services for adults for longer term
treatment. In addition to patients arriving through Emergency Medical Services and law
enforcement,the facility will also accommodate walk-in patients.The facility will also provide
criminal justice stakeholders with clinical assessment services and a facility to offer the most
appropriate care for justice-involved individuals in the least restrictive setting possible.
The project budget does not currently include the cost of land acquisition as staff is evaluating
County owned and shared sites first.
• Cedar Grove Community Center Flooring- $422,000
The vinyl flooring throughout the Cedar Grove Community Center is exhibiting air bubbles or
packets that are generating trip hazards. During the pandemic, the gym was closed due to
these hazards. The County is completing spot flooring repairs that have allowed for
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reopening, but the entire floor space will need to be replaced. The flooring to be replaced is
approximately 3,354 square feet.
• Climate Change Mitigation Project - $564,085
The Climate Change Mitigation Project was established in FY2019-20 to fund initiatives to
combat climate change. The Board of County Commissioners subsequently revised the
allocation to 50% for a county administered competitive grant program and 50% for school-
related projects. At that time, the Board of County Commissioners dedicated a quarter-cent
of the property tax rate to fund this project. In FY2023-24, the quarter-cent tax is expected
to generate approximately$564,085.
Climate Change Mitigation funds are transferred into this multi-year capital fund each year
so that funds that are unspent at the end of the fiscal year are preserved in the fund.
• Electrical Upgrades-$56,232
This project is used to update electrical systems including distribution panels, interior lighting,
exterior lighting, transformers, and other related electrical items. The FY2023-24 project
plans and replaces exterior light poles and lamps surrounding the Phillip Nick Waters
Emergency Services building as recommended by the Facilities Condition Assessment.
• Emergency Generator Projects- $1,116,500
The FY2023-24 CIP recommends a total of$1,116,500 is to replace existing generators at the
ENO Mountain Tower where public safety radio equipment is located and at the Phillip Nick
Waters Emergency Services building due to age and capacity needs.This project also includes
installing a new generator at the Orange County Transportation Administration Building and
at the Justice Facility so that transit operations and court services are not impeded during
power outages.
• Facades- $472,650
The Facade project is a new category that used to be included with roofing projects. In an
effort to differentiate between the two, fagade work is now included as a separate project.
For FY2023-24, funding is recommended to replace exterior windows and cornice trim at the
Whitted Building to improve energy efficiency and building comfort.
• Facility Accessibility, Safety and Security Improvements- $40,300
This project funds a variety of facility improvements throughout the County. For FY2023-24
this project funds accessibility improvements at several facilities and automatic external
defibrillator (AED) replacements in the Justice Center and the West Campus Office Building.
• Fire Alarm and Fire Suppression System Replacements-$464,560
The Fire Alarm and Fire Suppression System Replacement project is a new category that used
to be included with Facility Accessibility, Safety, and Security Improvements. In an effort to
differentiate between the two, Fire Alarm and Suppression is now included as a separate
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project. For FY2023-24, funding is recommended to update the fire alarm system at
Hillsborough Commons where the Department of Social Services is housed and to replace fire
doors at a variety of other County facilities.
• Fleet Services Inventory Shop and Equipment - $120,000
Orange County operates a Fleet Services Department that provides routine maintenance and
repair services for most County vehicles. In FY2023-24,funding is recommended to construct
an office space and waiting area reduce the number of visitors entering the maintenance
shop and a secure area to store parts for vehicles to prevent losses.
The project also includes the acquisition and installation of a heavy duty lift ($90,000). The
maintenance area currently includes one heavy duty lift, so installing another would facilitate
simultaneous maintenance on EMS or Transportation heavy vehicles.
• Fuel Station—Pump,Tanks, and Tank Monitoring- $53,240
The County operates a fueling station for County vehicles and equipment. Operating an
independent fueling station allows the County to take advantage of wholesale instead of
retail pricing on gasoline and diesel fuel. This project will replace the existing fuel dispensers
and the tank monitoring system both of which are past the end of useful life.
• Heating,Ventilation, and Cooling (HVAC) Projects - $3,428,592
This project is a combination of Heating, Ventilation and Air Conditioning System
replacements and the controls used to manage those systems.The replacements and repairs
are prioritized based on the current age, maintenance history, and facilities served.
The projects recommended for FY2023-24 represent an increase from previous and future
years. The projects were all recommended for near term replacement by the Facilities
Condition Assessment, and the Whitted Building HVAC replacement represents almost half
of the total recommended funding alone. Budgeting several projects in the same year also
has the benefit of being able to bundle the projects, creating efficiencies in bidding and
replacement. This project would fund replacements at Central Recreation, Fuel Station,
Gateway Center, Passmore Center, Whitted Building, Justice Facility and the West Campus
Information Technology Server Room and Data Center.
• Interior Finish Replacements- $300,080
The Interior Finish Replacement Project is used to replace facility finishes including carpet,
tiles, flooring, and interior replacement needs. In FY2023-24, the CIP recommends
replacement of the epoxy flooring throughout the Animal Services building and replacement
of the carpet in the Whitted meeting room.
• Lake Orange Dam Rehabilitation - $2,350,000
Lake Orange is a Class II public water supply reservoir owned by Orange County. The lake's
primary uses are to serve as a public water supply and to maintain minimum flows in the Eno
River as defined within the Eno River Water Management Plan.
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The County retained professional services in early 2022 to review and prioritize repairs of the
dam, intake tower, erosion control barrier, emergency spillway, and concrete spillway
channel. The FY2023-24 CIP recommends $2,350,000 for the complete replacement of the
Intake Tower. This project currently represents the full cost of these repairs, but the County
will seek federal infrastructure grants to reduce the County's costs.
• Parking Lot Improvements-$46,500
The Parking Lot Improvements Project is used to repaint lines in existing parking lots and to
fill cracks in the asphalt to extend the life of the parking lot. Improvements are recommended
outside of the Central Recreation building and painting and patching several other lots in the
County.
• Piedmont Food Processing Center Improvements- $19,019
Part of the County's economic development strategy is to facilitate the use of locally grown
food and to support the growth of small businesses. The Piedmont Food Processing Center
provides a low cost production environment to reduce the barriers of entering the food
production market. Orange County owns the facility that houses the Piedmont Food and
Agriculture Processing Program. Funding of$19,019 is recommended in FY2023-24 to replace
the exterior windows. These replacements are funded using Article 46 Economic
Development Sales Tax proceeds.
• Plumbing Repairs-$43,760
The Plumbing Repair project is a combination of major plumbing repairs across multiple
county facilities and includes backflow preventers, hot water heaters, sinks, toilets, water
fountains, and other plumbing-related items. The project is recommending replacement of
two water heaters at Animal Services as well as the well pump at the Cedar Grove Community
Center in FY2023-24.
• Register of Deeds Automation - $80,000
The Register of Deeds Automation project is funded using automation fees that are
specifically designated by State Statute to improve technology capabilities in the Register of
Deeds Office. Each year, the County budgets $80,000 which is allowed to accumulate over
time to make significant technology investments.
• Roofing- $85,000
This roofing project is used to maintain and replace roofing on County facilities. These
replacements and repairs are prioritized based on a Roof Asset Management Plan. The
funding recommended in FY2023-24 provides $55,000 for the annual inspection and repair
program.
• Sustainability Projects- $312,000
The Capital Investment Plan has historically included an annual recommendation of$50,000
per year to design and implement sustainability and renewable energy projects on County
property and provide a source of local match for competitive grants. Due to the increased
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urgency of climate action and the potential availability of federal resources, the FY2023-24
Sustainability Project is recommended to be funded at $312,000.
County staff have been monitoring the implementation of the Inflation Reduction Act (IRA)
and the Infrastructure and Investment Jobs Act (IIJA) which should provide historic levels of
funding for climate action projects. As a result, the CIP includes grant match amounts to
install publicly available electric vehicle charging stations throughout the County ($50,000),
upgrade to the most energy efficient LED lighting through Duke Energy's small business
energy saver program which covers 35% of the upgrade cost with a 65% County contribution
($50,000), and install a pilot agrivoltaic program in collaboration with the Orange County
Cooperative Extension aimed at increasing renewable energy capacity ($25,000).
The remaining funds ($187,000) are recommended for County fleet electric vehicle charging
equipment needed to accommodate the transition to electric vehicles.
• Vehicle Replacements - $1.79 million
The Capital Investment Plan is also used to procure replacement vehicles used by County
Departments. A total of$1,790,130 is recommended in FY2023-24 to replace approximately
fifteen (15) vehicles for the Sheriff's Office, two (2) AMS vans, one (1) Animal Services pickup
truck, two (2) Car Share sedans, two (2) DEAPR pickup trucks, four (4) DSS vehicles, one (1)
Economic Development van, five (5) EMS administrative vehicles, one (1) EMS pickup truck,
one (1) Health pickup truck, one (1) Planning vehicle, and lease buyouts for eight (8) vehicles
that were previously leased. A total of ten (10) of the proposed new vehicles are scheduled
to be replaced with electric vehicles.
• Veterans Memorial Phase 3 - $25,000
The Veterans Memorial Committee requested $25,000 from the County to construct Phase 3
of the memorial. This phase would construct a permanent kiosk and electrical work. The
Committee has also requested $7,500 from Hillsborough, $10,000 from Carrboro, and
$20,000 from Chapel Hill.
Public Safety
The FY2023-33 Recommended CIP includes investments that will support the County's public
safety functions to modernize information technology systems and continue to reliably and
efficiently respond to emergencies. Vehicles for the Sheriff's Office and Emergency Services are
included in the Vehicle Replacement project.
• Bidirectional Antenna Systems for Schools - $1,536,000
Bidirectional Antenna (BDA) Systems improve interior building penetration for public safety
radios. This coverage is essential during an emergency occurring in a school where the quality
of radio coverage can suffer due to building construction standards. In addition to improving
coverage in the building,these BDA's will reduce the number of towers that would have been
necessary to achieve countywide radio coverage in future years at a cost of over $45 million
in FY2021-22 dollars.
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Benchmark testing of all K-12 Public Schools has been completed to prioritize and prepare for
installations. An initial $300,000 was authorized in FY2022-23 to start the installations, and
an additional $1,536,000 is requested in FY2024-25 to complete them.
• Communication System Improvements-$220,500
New technology is mandating the phased implementation of Time Division Multiple Access
functionality to improve the overall capacity of the State's emergency responder radio
system. This technology allows multiple users to share the same frequency by assigning them
time slots. Funding is included through FY2025-26 for these radio upgrades. The cost of each
radio is escalated by a 5% inflationary factor each year based on recent history.
• Emergency Services Renewal and Replacement-$200,000
The Emergency Services Renewal and Replacement Fund is used to replace mission critical
Emergency Medical Services (EMS) equipment such as stair chairs, Lucas CPR devices, EMS
treatment bags, and electrocardiogram (EKG) equipment. The department is in the process
of developing a long-range recurring replacement schedule to forecast specific future needs.
Funding is included in each year of the ten year plan with costs escalated by 3% annually.
• Sheriff's Record Management and Jail Management System Replacement- $1,925,252
A law enforcement Records Management System (RMS) is the software that manages all data
pertaining to law enforcement operations. A Jail Management System (JMS) integrates with
the RMS in cases where a contact with law enforcement results in a booking at the Detention
Center. This integration allows for a more accurate and efficient transfer of data.
The current RMS used by the Sheriff's Office is twenty-three years old and is need of
replacement. The vendor of the current software announced the system's end of life in 2019
and stopped providing enhancements at that time. It is written in Microsoft FoxPro code
which stopped being supported in 2015. Regular support for maintenance has also been
reduced, jeopardizing functionality if the software were to fail. In addition, the current
software does not have the ability to integrate with newer systems such as on body video, in
car video, license plate recognition software, and real time crime center software. This lack
of integration creates workflow inefficiencies, and a more modern RMS would provide the
Sheriff's Office with better crime analytics and intelligence.
From the beginning of a needs assessment, through the selection process, contract
negotiations, and the implementation of a new system,the timeline for final implementation
is approximately two years and six months.
Information Technology
Significant information technology and communication improvements are financed through the
Capital Investment Plan. These projects maintain and expand the capabilities of the County's
information technology infrastructure, employ new technologies to better meet the needs of
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County residents, protect and secure critical data and systems, and improve internal operating
efficiencies.
• Information Technology Infrastructure Initiatives - $837,377
The FY2023-24 CIP recommends $837,377 in Information Technology infrastructure
investments such as security improvements, server upgrades, desktop and laptop
replacements, data storage, and network improvements. Of the total funding recommended
in FY2023-24, $269,500 will be used to replace an estimated 116 laptops that are over six (6)
years old, and to replace an estimated 39 desktops, that are over seven (7) years old. The
project also includes $167,877 for audio visual system enhancements at the Bonnie B. Davis
Center, Department of Social Services, and Blackwood Farm Park.
• Information Technology Governance Council Initiatives-$500,000
This project funds technology related initiatives that are recommended through the
interdepartmental Information Technology Governance Council (ITGC). Funding of$500,000
is planned every other fiscal year for technology initiatives that primarily benefit individual
departments or a group of departments.
The initiatives in FY2023-24 include new modules of NeoGov for Human Resources, Building
Monitoring Systems for Asset Management Services, Northwoods IT Security Upgrade for
Social Services, Apricot 360 Case Management software for the Criminal Justice Resource
Department and Housing Department, Online Listing Services and Geographic Information
System (GIS) upgrade for Tax Administration, and Arrow Global Positioning System (GPS) and
Scanner/Plotter upgrade for Planning and Inspections.
These projects have an estimated ongoing maintenance cost of $171,466. For future ITGC
awards, the estimated operating impact is 50% of the initial acquisition cost over five (5)
yea rs.
Parks, Open Space, and Trail Development
The Board has consistently funded projects for parks, open space, farmland preservation, and
trail development intended to preserve natural areas of the County and promote nature activities
for County residents. Funding recommendations in this category are generally guided by the
Parks and Recreation 2030 Master Plan, Lands Legacy Action Plans as well as the individual plans
that have been adopted and are periodically updated for each park property. The FY2023-24 CIP
recommends funding for the following projects:
• Blackwood Farm Park—$775,000
Blackwood Farm Park is a 152 acre regional park between Chapel Hill and Hillsborough on NC
Highway 86 and New Hope Church Road. The FY2023-24 CIP recommends $775,000 to fund
Phase 3 construction. Phase 3 includes most of the remaining park facilities, primarily the
New Hope Church Road overlook and a picnic shelter that can also serve as an outdoor
classroom for environmental and nature programs as well as facilities and amenities with
associated equipment and operational needs.
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• Fairview Park Improvements - $522,500
This project will construct additional tennis/pickleball courts at Fairview Park due to increased
demand.This need was identified in the last budget cycle,and funds to construct these courts
were included in the Cedar Grove Park CIP project. Since that time, however, staff has
determined that sufficient space and parking exists at Fairview Park (adjacent to existing
courts) to construct the new courts at Fairview Park instead.
• Fairview Park Mitigation - $3.0 million
A portion of the Fairview Park site was used as a pre-regulatory landfill. This project includes
site assessment and landfill mitigation of that portion of the property. The cost of the site
assessment and remediation work are reimbursed by the State Division of Environmental
Quality under a memorandum of understanding. The assessment is expected to be
completed by summer 2023 which will allow the State to develop a detailed plan for the
mitigation. The intensity of the mitigation work will also dictate the parameters and potential
limitations for future park construction.
• Mountains to Sea Trail - $100,000
The Mountains to Sea Trail is a long-term, voluntary acquisition of trail easements and trail
construction, as lands are acquired and segments are connected. The FY2023-24 project is
intended to provide a grant match to construct future trail sections and trailhead areas.
• Implementation of Neuse River Rules for Nutrient Management- $175,000
The State-mandated Falls Lake Nutrient Management Rules call for each jurisdiction in the
upper Neuse River Basin to reduce total nitrogen levels by 77% and total phosphorus levels
by 40% over a period of several years to improve water quality. Compliance with these rules
would be costly to each of the local governments located in the basin. However, the Upper
Neuse River Basin Association has successfully secured approval of an implementation
approach that would be less expensive while still protective of water quality, and includes a
mix of storm water controls or wetlands improvements, conservation acquisitions and
practices, and other methods. The FY2023-24 CIP recommends that $175,000 be allocated
on an ongoing basis through FY2026-27 for the design and implementation of one or more of
these measures in Orange County.
• Perry Hills MiniPark- $80,000
During budget deliberations for the FY2022-23 Budget, the Board amended the capital
budget to include$100,000 to construct a mini-park project in the Perry Hills subdivision. The
mini-park is intended to make a public investment in this underserved area. As the design
has proceeded, however, the original budgeted amount is not sufficient to build the planned
facilities and address parking and stormwater management measures. As a result, the
FY2023-24 CIP recommends an additional $80,000 to complete the project. A plan for the
park is being completed this spring, working with community members.
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• Parks and Recreation Facility Renovations and Repairs - $180,000
Funding of$180,000 is recommended in FY2023-24 for ongoing safety, lighting/energy, park
infrastructure, signage, preventive maintenance, and landscape improvements to the
County's seven parks. Each year, park and recreation equipment and facilities need
renovation, safety improvements, repair, replacement, and upgrades. This project provides
for a predictable funding source for these needs identified in the 2030 Parks & Recreation
Master Plan process.
Financing the Capital Investment Plan
The Recommended Capital Investment Plan for FY2023-24 totals $53.4 million in expenditures.
Of that amount, $38.2 million is recommended to be financed by County funded debt. Other
significant sources of funds include additional pay-as-you-go (from Lottery Proceeds) and Article
46 sales tax proceeds. Both of these sources are dedicated to fund school capital needs and
contribute approximately $4.1 million to the resources used to support the CIP. The Plan also
includes approximately $4.3 million in pay-as-you-go or cash funding to support design and
architectural services and smaller projects with short useful lives.
Debt Capacity Target
County policy establishes a debt service capacity target of fifteen percent (15%) of general fund
revenues. Based on prior borrowing approved by the Board, this target is achieved in FY2023-24
at 13.65%. As future projects are planned, the County largely maintains policy compliance
throughout the ten year planning horizon, peaking at 15.7%in FY2030-31. As the Board considers
the CIP, staff will provide updates and recommend necessary adjustments so that the Board is
comfortable with the current and planned debt over the course of the FY2023-33 CIP.
Long Term Priorities
The FY2023-33 Plan begins to include enumerations for several priority projects that have come
into closer focus with new information.
• Affordable Housing
The FY2023-33 CIP contains a total of $15 million in staggered funding over the ten year
planning horizon. This is intended to provide a predictable source of subsidy for affordable
housing developers.
• Community Center Space Needs
The FY2023-33 CIP projects an expansion of the Community Center in the Rogers Eubanks
neighborhood in the FY2025-FY2027 timeframe. With a total cost of approximately $2.3
million, the project also anticipates a funding partnership with the Towns of Chapel Hill and
Carrboro consistent with the original cost sharing agreement.
The Efland Community Center has also expressed a desire for more space, but the current
site will not support an expansion. As a result, a different approach would need to be
considered to increase that space.
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• County Recreation Center
The County's existing Central Recreation Center in Hillsborough will require substantial
renovations and potential expansion if it is sized to meet the increasing demand for
affordable County recreation programs. Funding for this project is projected to be
approximately $16.4 million during the FY2029-30 timeframe.
• Emergency Radio System Build Out
Emergency Services has continued to evaluate the most effective and efficient approach to
improving emergency radio coverage using the most current technology. A new concept for
tower construction has been established, and a five year plan is funded at$29 million starting
in FY2025-26. This project also includes partnership funding from the Towns based on the
number of public safety radios utilized by each jurisdiction.
Horizon Projects
In addition to the investments specifically enumerated in the Plan, the Board may be asked to
address other needs through future capital budgeting processes.
• Additional School Capital Needs
As noted above, the School Capital Needs Task Force asked staff to solicit proposals for a
school capital needs consultant to identify, quantify, and prioritize school capital needs.
County staff worked with school district staff to contract with a school capital needs
consultant to perform those services. Although the FY2023-33 CIP reserves capacity for a
$130 million general obligation bond, the actual capital needs are expected to exceed that
amount, so strategies that add debt capacity would need to be explored in order to make
additional capital funding available for school improvements.
• Facility Master Plan Recommendations
The County is finalizing a Facility Master plan to address future space needs. Among the
decisions contained in the first five years of the Plan is the future use of Link Building, the
Detention Center and Court Street Annex site, the construction of a new Emergency Services
facility, and the use the former Environment and Agricultural Center.
Gratitude and Appreciation
The FY2023-33 Recommended CIP is the culmination of long term planning, creative thinking,
and problem solving by numerous County staff. We thank them for their valuable contributions.
The County's Budget Office, led by Kirk Vaughn and supported by Christy Dodson, provided
exemplary support, advice, and attention to detail. In addition to the work of the Budget Office,
this document includes valuable contributions from Angel Barnes,Capital Projects Manager,Chaz
Offenburg, Deputy Finance Director, and Gary Donaldson, Chief Financial Officer. This year's
planning process was further enhanced by the input of the County's Sustainability Coordinator,
Amy Eckberg, who helped the team review each project proposal through the lens of
sustainability.
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We look forward to working with you over the next several weeks to improve upon the Manager's
Recommended Capital Investment Plan. Please contact us if you have any questions.
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