HomeMy WebLinkAboutAgenda 11-09-23; 2 - Orange County Facilities Master Plan Update 1
ORANGE COUNTY
BOARD OF COMMISSIONERS
ACTION AGENDA ITEM ABSTRACT
Meeting Date: November 9, 2023
Action Agenda
Item No. 2
SUBJECT: Orange County Facilities Master Plan Update
DEPARTMENT: Asset Management Services
ATTACHMENT(S): INFORMATION CONTACT:
A. Goals, Objectives, Space Planning Travis Myren, Deputy County Manager,
B. Executive Summary — Facilities 919-245-2308
Condition Assessment Steven Arndt, Asset Management
C. Phasing Plan Services Director, 919-245-2658
PURPOSE: To receive an update regarding the development of a Facilities Master Plan for
Orange County, and to provide feedback regarding several key planning recommendations.
BACKGROUND: At its May 3, 2022 Business meeting, the Board of Commissioners approved a
contract with O'Brien Atkins Associates for the development of an Orange County Facilities
Master Plan with a 20-year planning horizon. The scope of the planning effort was to encompass
all major facilities and programs operated by the County, with the exception of Parks and
Recreation and Solid Waste, as these departments will be conducting separate planning efforts.
Over the next year, O'Brien Atkins Associates performed the following tasks in support of the
development of the Facilities Master Plan:
Task Dates
Project Kick-Off May 24th, 2022
Planning Goals and Data Gathering June-July 2022
Space Planning July-October 2022
Public Forum November 17th,2022
Planning Options Development November 2022- March 2023
Master Plan Update to Board I March 7th, 2023
A March 7, 2023 update to the Board of County Commissioners provided an overview of the
process undertaken to develop the components of the plan, including the establishment of
planning goals, analysis of the Facilities Condition Assessment, the evaluation of existing County
spaces and projection of future County space needs. Two important findings of that update were
that:
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1. The Facilities Condition Assessment identified that a significant portion (76%) of County-
owned facilities will be nearing or past the end of their useful lifespan within the next ten
years.
2. The Space Planning analysis identified a need to construct 156,732 square feet of
additional space to accommodate growth within County Departments by 2040.
Attachment A is a copy of the established goals and objectives of this planning process and a
summary of the results of the space planning analysis. Attachment B is a copy of the Executive
Summary of the Facilities Condition Assessment.
At the March 7, 2023 Board meeting, the planning team also presented eight key planning
decisions for evaluation and consideration by the Board. At the conclusion of the presentation,
the Board discussed and commented on the presentation, but deferred making any decisions or
taking any formal action regarding the Facilities Master Plan. The Board concluded that final
decisions regarding the County Facilities Master plan should wait until the Public Schools Capital
Needs planning effort just underway at the time was closer to completion, so that the Board could
weigh and evaluate the costs associated with both plans.
Over the following months, the Public Schools facilities planning effort has made significant
progress and is nearing completion, including several presentations that have been made to the
Board regarding the size and scope of the public-school facility needs. Given this progress, it is
appropriate to revisit the County Facilities Master Plan and re-evaluate the eight key planning
decisions presented to the Board in March 2023.
Key Planning Decisions
The following eight (8) key components of the facilities master plan, along with options and
recommendations, are provided below, for the consideration by the Board. Feedback provided
by the Board will direct final plan development.
Item #1: Disposition of the John M. Link, Jr. Government Services Center, 200 South
Cameron Street, Hillsborough.
Due to environmental issues, this 25,000 gross square foot (g.s.f.) facility has been vacant since
November 2019. Options for this facility include:
• De-construction of structure, build parking lot for Justice Center ($1 M).
• Repair and renovate for Justice Center needs ($10.4M).
Recommendation: Repair and renovate the facility for growth in Justice Center related needs
($10.4M). Potential occupants include the District Attorney's Office, Criminal Justice Resource
Department, Adult Probation, and Juvenile Justice.
Item #2: Disposition of the Old Jail, 125 Court Street, Hillsborough:
The old jail, constructed in 1925, has been sitting mostly vacant* with the completion of
construction of the new Detention Center in 2021. This facility sits on 1.52 acres of prime land in
the historic center of Hillsborough, adjacent to the Justice Center. Options for this facility include:
• De-construction of this facility, create open space ($1.M).
• De-construction of this facility, construct interim parking lot for Justice Center needs
($1.5M).
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• De-construction of this facility, construct 26,000 g.s.f. Justice Center Annex to meet
anticipated growth needs. ($15.6M) This option would be required if the Link Center is
demolished.
Recommendation: Short range — de-construct Old Jail building, construct parking lot ($1.5M).
Long range - retain land for future development/growth needs of Justice Center.
* Note: At present, criminal evidence is stored within the basement of the old jail, occupying about
3,000 g.s.f. of space. When de-construction occurs, the evidence will have to be re-located to
storage space at the Cedar Grove Community Center.
Item #3: Emergency Management Building, 510 Meadowlands Drive, Hillsborough
This 22,069 g.s.f. office/warehouse facility siting on three (3) acres of land was purchased and
renovated for County occupancy in 2008. In 2019, the facility was renovated to address
environmental issues, but some issues persist to this day. The existing facility does not meet
industry standards for safety and security, and the building site will not be able to accommodate
projected growth of 22,000 g.s.f. by 2040. Options for this department include:
• Build a modern, 44,000 g.s.f. Emergency Management facility on County-owned land
adjacent to the Motor Pool located at 600 Highway 86 North, Hillsborough. Cost Estimated
at $28M.
• Remain at current location and build a small addition/annex nearby as the existing site will
not accommodate the projected growth ($10.4M).
Recommendation: Construct a new Emergency Management building on County-owned land
adjacent to the Motor Pool facility ($28M). Re-utilize 510 Meadowlands Drive for Asset
Management Services (AMS) and County storage needs.
Item #4: Central Recreation Center, 301 West Tryon Street, Hillsborough
Constructed in 1957, this 19,000 g.s.f. facility is outdated and in poor shape, suffering from
structural integrity issues, and lacking adequate Americans with Disabilities Act (ADA)
accommodations. In addition, the facility will not accommodate projected growth of 6,000 g.s.f. in
services through the planning horizon. Options include:
• Demolish and build anew 25,000 g.s.f. facility on County-owned land adjacent to the Motor
Pool located at 600 Highway 86 North, Hillsborough ($13.5M).
• Demolish and build a new 25,000 g.s.f. facility at existing site ($13.5M).
Recommendation: Demolish and build a new 25,000 g.s.f. facility on County-owned land
adjacent to the Motor Pool located at 600 Highway 86 North, Hillsborough ($13.5M). This new
location is next to Fairview Park and will enhance recreation opportunities for nearby underserved
neighborhoods.
Item #5: Disposition of the old EAC facility, 306 Revere Road, Hillsborough:
Originally constructed in 1960 as a grocery store, this 19,087 g.s.f. building provided offices for
the Department of Environment, Agriculture, Parks and Recreation (DEAPR) from 1987 until
2021, when staff transitioned into newly constructed facilities. While a significant portion of the
facility sits vacant, Asset Management Services (AMS) re-occupied a portion of the building in
October 2022 to accommodate organizational changes within the Whitted Human Services
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Building. In addition, approximately 4,000 g.s.f. of facility is used for vital document storage.
Options for this 3.84 acre site include:
• Continue to operate and maintain the facility and use as AMS office, storage/swing space.
Renovations and upgrades would be required ($5M).
• Offer land to a public non-profit or private developer to build affordable housing. This
option would necessitate the construction of new facility to house AMS administrative staff
and maintenance shops ($3.6M). In addition, vital document storage would need to be
created at Cedar Grove Community Center (50k).
• If the timeline to build affordable housing can wait until a new Emergency Management
facility is built, AMS could backfill into its current facility.
Recommendation: Offer land to a public non-profit or private developer to build affordable
housing. Construct new AMS offices adjacent to the Maintenance Building located at 600 Highway
86 North, Hillsborough. If the timeline for affordable housing can wait until a new Emergency
Management facility is constructed, AMS administrative staff could backfill into the current
Emergency Management facility.
Item #6: Sheriff's Office, 106 East Margaret Street, Hillsborough
The space planning analysis determined that the layouts of the District and Superior Courts within
the Justice Center were deficient and required major re-design to meet industry standards. In
addition, the Sheriff's Office, currently located within the Justice Center, is projected to grow
significantly by 15,191 g.s.f. within the planning period. The following options were developed to
address this situation:
• Move the Sheriff's Office out of the Justice Center to accommodate growth/reconfiguration
of the courts. Construct a new 31,000 g.s.f. Sheriff's Office facility on County-owned
property adjacent to the Motor Pool located at 600 Highway 86 North, Hillsborough
($17.68M).
• Construct a building addition to the Justice Center for Sheriff and Justice Center ($25M).
Recommendation: Construct new Sheriff's Office on County-owned land adjacent to the Motor
Pool Facility ($17.68M).
Item #7: Health Services, 300 Tryon Street, Hillsborough
A portion of Health Department is currently located within the Whitted Human Services Center,
300 West Tryon Street, Hillsborough. Originally a high school constructed in 1925, this facility was
subsequently renovated for County functions. The medical and dental clinics are located in the
ground floor/basement level of the facility in substandard space. The Whitted complex is old, has
limited parking and is difficult to access. In addition, the facility is not served by public
transportation. Finally, the existing facility will not accommodate anticipated growth of 7,056 g.s.f.
during the planning period. The following options were developed to address these concerns:
• Construct a new, modern, 39,800 g.s.f. Health Services Complex in a commercial district,
with ample parking, access to public transportation, and adjacent to major highways, I-85
and 1-40. This construction could be phased with the initial construction of the Medical
and Dental Clinics, followed by the administrative offices ($25M).
• Remain in the Whitted Center; renovate spaces to better serve County constituents
($1.6M). However, growth needs will not be met.
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Recommendation: Construct a new modern Health Services Complex in a commercial district,
with work performed in phases over time ($25M). Backfill vacated Whitted facility spaces with
administrative functions such as the County Attorney's Office.
Item #8: Social Services, Hillsborough Commons, 113 Mayo Street, Hillsborough:
A portion of the Department of Social Service (DSS) is currently located at Hillsborough
Commons, 113 Mayo Street, Hillsborough. Originally constructed in 1988, this 56,000 g.s.f. facility
was a former Wal-Mart store that was renovated into offices and leased to the county starting in
2008. Rent is currently $71,000/month. The roof was replaced by the owner in 2020, but
continues to leak from time to time. The facility is fully occupied and will not easily accommodate
future projected growth of 12,000 g.s.f. This may be partially offset by phasing in remote/hybrid
work options; however, many DSS positions require face to face interaction with County residents.
The building is aging and will require major upgrades in future years. The following options were
developed to address these concerns:
• Exit the lease at Hillsborough Commons. Construct a new 64,379 g.s.f. DSS facility in a
commercial district, with ample parking, access to public transportation, and adjacent to
major highways, 1-85 and 1-40. It may be advantageous to locate this adjacent to the new
Health Services Complex, if that project is also approved ($38.7M).
• Remain at Hillsborough Commons. Renovate as necessary to accommodate projected
growth (hybrid office arrangement). Consider rental of additional space in shopping center
($2.7M).
Recommendation: Exit the lease at Hillsborough Commons. Construct a new 64,379 g.s.f. DSS
facility ($38.5M).
Phasing Plan
A project phasing plan that incorporates the key planning decision recommendations is provided
in Attachment C. This phasing plan describes the sequence of projects to be performed by year.
The first ten years of the phasing plan also include estimated budgets for each project. The
remaining long-range projects in the Master Plan are described and sequenced, but do not include
a budget, as the process of budgeting beyond a ten-year horizon is less than reliable. It is
recommended that the Facilities Master Plan should be reviewed and updated every five years,
and budgets for those long-range projects can be developed at a time closer to actual
implementation.
FINANCIAL IMPACT: Implementing the recommended projects in the first ten years of the
phasing plan (Attachment C)would cost a total of$130.3 million over the ten-year period. Approval
of all or a portion of these recommendations would require an analysis of the debt model to
determine the timing and feasibility of the performance of this work.
SOCIAL JUSTICE IMPACT: The following Orange County Social Justice Goal is associated with
this item:
• GOAL: ENSURE ECONOMIC 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.
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ENVIRONMENTAL IMPACT: The following Orange County Environmental Responsibility Goal
impacts are associated with this item:
• ENERGY EFFICIENCY AND WASTE REDUCTION Initiate policies and programs that: 1)
conserve energy; 2) reduce resource consumption; 3) increase the use of recycled and
renewable resources; and 4) minimize waste stream.
• RESULTANT IMPACT ON NATURAL RESOURCES AND AIR QUALITY Assess and
where possible mitigate adverse impacts created to the natural resources of the site and
adjoining area. Minimize production of greenhouse gases.
RECOMMENDATION(S): The Manager recommends that the Board:
1) Receive a Facilities Master Plan update provided by O'Brien Atkins Associates; and
2) Consider providing feedback on the eight recommendations regarding the master plan
development.
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Facilities Master Plan
Attachment A
A. Goals for the Facilities Planning Process: The following facilities planning
goals were established early in the process:
• Provide customer service in safe, secure and accessible facilities.
• Be good stewards of the County's financial and land resources.
• Where possible, move out of older facilities that have reached the end of their
useful life cycle.
• Consolidate departments and services to gain efficiency.
• Respond to floodplain issues.
B. Space Planning Analysis: The Space Planning phase identified an additional
111,891 Departmental Gross Square Feet (DGSF) of space needed by 2040.
This translates into a Gross Square Foot (GSF) need of 156,732 by the year
2040. The chart below summarizes this information.
Net Change Grossing Factor by GSF Space
Category DGSF Type Needs bt 2040
Admin 13,090 Office 30% 17,017
Community
Service 21,880 Office 25% 27,350
Human
Services 25,079 Health 45% 36,365
Justice 23,923 Court 45% 21,653
Office 30% 11,686
Public Safety 22,807 Sheriff 30% 15,191
EMS 25% 21,080
Support
Services 5,112 Office 25% 6,390
Total Space
Needed 111,8911 156,732
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Attachment B
Facilities Condition Assessment
Executive Summary
ORANGE COUDUY,PSC 9{1REM)WEFiITA'S PRMEGT: 153546.21RUDD-001 354
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Facility Condition Index (FCI) LLJ
CL
One of Ow major goals of the FCA is to calculate each building's Facifty Condition Indeic FCla,which provides a thea reiical •
objective indication of a building's overall condrtirnl_ By definition,the FCI is defined as the ratio of the cost of current needs
divided by cuffe rf replatoer ant value(CRV)of the facility_ The charl below presents the industry standard ranges and cut-
off points.
r
FC1 Ranges
? Description
0-5% In new or welknainitained condlhon,with little or rio Asual evidence of wear or defiaencies-
5-100 Subjected to wear but is still in a serviceable and functioning condition-
10 30% Subjected to hard or lorKFterm weElr_tlearina tie end of its useful or serviceable life_
3Li%and above Has reached the end of its ksefiti of serviceable life_Renewal is now neressaly.
The defidencies and lifecycle needs identified in this assessment provide the basis for a pDTftlio-wide capital improvement
finding strategy. In addition to the current FCI,extended FCI's have been developed to provide owners itire intelligence
needed to plan and budget for the'keep-up costf for their fac Wties. As such the 3-year,5-year, and 1&year FCI's are
calculated by dividing the anficapated needs oflhlose respective time periuds by current replacement value. As a final point
the FCJ's ultimately provide more value when used to relatively compare facilities across a porftio instead of being over-
analyzed and senAinized as stand-alone values_ The table below summarizes the individual findings forthi5 FCA:
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11
End of Useful Life
Five Year Ten Year
Building Name s.f Building Name s.f.
AMS Maintenance 4,663 AMS Maintenance 4,663
AMS storage 1,702 AMS storage 1,702
Efland Cheeks Shelter 560 Animal Services Center 23,500
Emeregency Rescue#1 1,310 Caldwell Jones Law Office 360
OLD EAC 19,087 District Attorney Building 7,359
Fuel Station 86 Effland Cheeks Community Center 2,755
Historic Courthouse 7,128 Efland Cheeks Shelter 560
Southern Human Service 26,780 Emeregency Rescue#1 1,310
61,316 OLD EAC 19,087
Fuel Station 86
Total%Beyond Service Life 8% Hillsborough Commons 56,000
Historic Courthouse 7,128
Motor Pool 10,600
Public Transportation 2,400
Piedmont Food and Ag 10,400
Seymour Center 31,780
Southern Human Services 26,780
West Campus Office Bldg 46,716
Whitted,Bldg B 29,550
282,736
Total%Beyond Service Life 36%
Nearing End of Useful Life
Five Year Ten Year
Building Name s.f. Building Name s.f.
Animal Services Center 23,500 Board of Elections 12,250
Caldwell Jones Law Office 360 Cedar Grove Community Center 30,782
Central Rec 19,000 Central Rec 19,000
Court StrAnnex 8,500 Communications Tower 252
District Attorney Building 7,359 Court Str Annex 8,500
Effland Cheeks Community Center 2,755 Dickson House 3,250
Emergency Services 22,069 Effland Cheeks Community Center 2,755
Old Jail 40,227 Emergency Services 22,069
Motor Pool 10,600 Farmers Market Pavillion 3,453
Whitted A 33,550 Gateway Center 22,846
WhittedB 29,550 Old Jail 40,227
197,470 Passmore Senior Center 20,950
Justice Facility 64,937
Total%nearing end of Service Life 25% Hillsborough Public Library 23,454
Rogers Road Community Center 3,960
Solty's daycare 3,500
Visistors Bureau 4,060
Whitted A 33,550
319,795
Total%nearing end of Service Life 40%
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Attachment C
Facilities Master Plan
Project Phasing
SHORT RANGE(2025-2029)
# Description Cost YR
SR1 Renovate Link Building $9,903,231 2025
Renovate Wings of Cedar Grove Community
SR2 Center for Storage $4,320,000 2025
De-construct old jail - move Sherriff evidence
SR3 storage to Cedar Grove $2,025,534 2026
De-construct Court Stret Annex- Build Parking
SR4 Lot $551,250 2026
Deconstruct District Attorney Building- Buildi
SR5 Parking Lot $324,531 2027
SR6 Build EMS Facility $26,559,570 2028
SR7 Convert old EMS building for use by AMS $5,518,287 2028
Move storage out of Old EAC Buildingto Cedar
SR8 Grove $0 2029
Build Central Recreation Building at Motor Pool
SR9 Site $17,340,851 2029
Build Transportation Addition to Motor Pool
SR10 Building $4,266,299 2029
TOTAL $70,809,553
MID RANGE(2030-2034)
# Description Cost YR
MR 1 Develop EAC Property for Affordable Housing $0 2030
MR 2 Deconstruct Central Rec&Create Open space $996,197 2030
MR 3 Build Addition to Southern Health & HS Bldg. $16,086,726 2031
MR4 Deconstruct Transportation Bldg $122,987 2032
MRS Build Sherriff Office at Motor Pool site $22,556,272 2033
MR 6 Renovate Ground Floor of Justice Bldg $2,740,762 2033
MR 7 Build Parking Deck at Old Jail $14,831,155 2034
MR 8 Move CJRD out to Link, Renovate CJDR space $228,018 2034
MR9 Renovate 3 District Courtrooms in Justice Center $1,900,155 2035
TOTAL $59,462,272
Note: First ten years of phasing plan total $130,271,805
13
LONG RANGE(2035-2040)
# Description Cost YR
Move Public defender out of 115 E. King st
LR 1 (lease) and into Justice center 2nd Floor 2035
Deconstruct Battle Courtroom and build a new
LR 2 Superior Court Addition to Justice Center 2035
Build Addition to the east of Justice center for a
new Superior Courtroom. Move Superior Court
LR 3 out of Historic Courthouse. 2036
Convert Historic Courthouse to a Cultural
LR 4 Center/Museum 2036
Build Health (Med +Dental Clinics) Building,
LR 5 move staff out of Whitted. 2037
Build Addition to LR 5 Building for Helath Admin
LR 6 Spaces, move staff out of Whitted. 2037
Move County Attorney, Equity& Inclusion to
Whitted Building. Exit lease of 1000 Corpoerate
LR 7 Drive. 2038
Build Social Services campus to Replace
Hillsborough Common Exit Hillsborough
LR 8 Commons lease. 2039
Move Finance &Administrative Services and
Risk Management out of West Campus Office
LR 9 Building to Whitted Building. 2039
Renovate West campus to accommodate growth
LR 10 of remaining departments. 2040
Note: Long Range projects are not budgeted, as they occur at a future date that would make such
budgets unreliable. It is recommended that the Facilities Master Plan should be reviewed and updated
every five years. These projects should be budgeted at a time closer to actual implementation.