HomeMy WebLinkAboutAgenda 11-14-23; 6-a - Approval of a Professional Services Contract with Gensler to Provide Community Engagement Services for a Greene Tract Master Plan 1
ORANGE COUNTY
BOARD OF COMMISSIONERS
ACTION AGENDA ITEM ABSTRACT
Meeting Date: November 14, 2023
Action Agenda
Item No. 6-a
SUBJECT: Approval of a Professional Services Contract with Gensler to Provide Community
Engagement Services for a Greene Tract Master Plan
DEPARTMENT: Planning and Inspections
ATTACHMENT(S): INFORMATION CONTACT:
1. Gensler Community Engagement Services Cy Stober, Director, 919-245-2592
Proposal Perdita Holtz, Deputy Director, 919-
245-2578
PURPOSE: To provide a historical perspective on engagement activities related to the
development of the Greene Tract and to discuss and approve a new community engagement
proposal to inform the site design process.
BACKGROUND: The Greene Tract is located east of the Rogers Road community within the
Town of Chapel Hill's extra-territorial jurisdiction (ETJ). Of the 164-acre parcel, 104 acres is jointly
owned by Orange County/Chapel Hill/Carrboro and 60 acres is owned by Orange County
(Headwaters Preserve). Over the last 20+ years, the three jurisdictions have invested significant
resources to identify and support the goals for the Greene Tract as a resource for the Rogers
Road community and the residents of the two towns and Orange County, all of which can be found
on the County's dedicated Greene Tract project page and dynamic StoryMap, but featuring the
following-
- In 2006, the Town of Chapel Hill initiated and led a Rogers Road Small Area Plan Task
Force with the Greene Tract partners, resulting in a final report in March 2009;
- In 2012, the Historic Rogers Road Neighborhood Task Force led its own small area
planning efforts, resulting in a final report in September 2013;
- In July 2015, the Jackson Center co-led the Mapping Our Community's Future Report with
the Historic Rogers Road Community, which was completed in May 2016;
- In June 2016, Orange County purchased 60 acres for preservation from the Solid Waste
Enterprise Fund ("Headwaters Preserve");
- At the 2016 Assembly of Governments (AOG) Meeting, a suggestion was raised to ask the
elected officials of the three jurisdictions to participate in discussions on the Greene Tract;
- In 2017, staff examined a potential reconfiguration of the jointly-owned tract and the
County-owned tract for the purposes of environmental preservation, potential affordable
housing development, and a possible school site;
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Between 2018 and 2019, the three jurisdictions considered multiple iterations of a joint
resolution for the development of the Greene Tract and accompanying Conceptual Plan;
- Between 2019 and 2020, the three jurisdictions discussed and approved the Greene Tract
Resolution for a Path Forward and Interlocal Agreement, identifying land use acreages for
the Greene Tract, initiating staff to seek professional services to conduct an environmental
assessment, and initiating the drafting of an Interlocal Agreement between the three
jurisdictions to provide a decision-making process for the three jurisdictions moving
forward;
- In April 2020, Orange County contracted with SynTerra to complete the Greene Tract
Environmental Assessment, to be delivered in July 2020;
- In 2021, the Interlocal Agreement (ILA) between Orange County and the Towns of
Carrboro and Chapel Hill Regarding the Current and Future Use of the Jointly Owned
Greene Tract was executed by all three parties. Among other commitments, it directed staff
from all three jurisdictions to work in good faith to "develop a work plan that includes, among
other things, a decision point timeline regarding development" of the Greene Tract; and
In November 2021, the three local governments adopted a resolution approving a
conceptual plan, which identified land uses and acreages to be used as schematic for
future planning purposes, including the development of a Master Plan. The 45 acres with
frontage on Purefoy Drive and Lizzie Lane were identified for "Development" and the 16
acres with frontage on Merin Road were identified as"Public School and Recreational Site".
In January 2023, a staff work group operating at the direction of the ILA identified the need to
separate the master planning needs for the Greene Tract into professional design services and
community engagement services, allowing trained professionals to focus on the respective
deliverables and allowing the planning staffs to coordinate their efforts. This would allow the
community engagement efforts to focus on a shared vision and mission for the design
professionals to utilize in the delivery of a master plan that recommends development footprints,
designs, and intensities for this acreage, as directed by the 2021 Greene Tract ILA. The staff is
currently reviewing Statements of Qualifications for the design services, and anticipate an award
of contract forthcoming.
Request For Proposals (RFP) Process of Evaluation
In June 2023, Orange County issued a Request for Proposals (RFP) to identify a qualified
consultant to provide Community Engagement Services for the Greene Tract Master Plan on
behalf of Orange County and the two Towns.
Four qualified proposals were received and evaluated by the proposal review committee
composed of Orange County, Town of Chapel Hill, and Town of Carrboro Planning staff. The
committee evaluation was based on the following criteria:
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Criteria Maximum
Point Value
1. Consultant experience as it relates to the scope of services of 15
the RFP and project deliverables
2. Technical approach to the project, proposed tasks, and 20
timeline to complete work
3. Project Organization 15
4. Consultant's capability and capacity to perform project 10
5. Community Engagement Strategy 20
6. Total cost of proposed services 20
Total 100
Based on the proposal evaluation process, the review committee unanimously recommends
Gensler for contract award. Gensler is an internationally-recognized land planning and
community engagement consulting firm with a Raleigh office dedicated to the North Carolina
Piedmont that supports 45 staff. Gensler features the Gensler Research Institute, which explores
equitable design solutions to create diverse spaces for clients and communities. Gensler is being
supported by VHB on this project, utilizing VHB's prior experiences in working with both Towns
and the County on varied planning projects, most recently a Traffic Impact Analysis for St. Paul's
Village located at the intersection of Rogers Road and Purefoy Drive.
Summary of Project Scope and Approach
The Gensler and VHB proposal is intended to assist Orange County, the Town of Carrboro, and
the Town of Chapel Hill with community engagement services to coordinate and manage the
community engagement strategy for the development of the Greene Tract Master Plan.
Community engagement efforts will be a central component to the master planning process and
will encompass innovative and inclusive community engagement initiatives, focusing on the
underserved Rogers Road and Eubanks Neighborhood community.
All services on behalf of the Greene Tract must be consistent with the "mutual promises and
obligations" for "Public Participation and Decision-Making" established by the 2021 Greene Tract
ILA, including commitments to Public Engagement, Affordable and Mixed Income Housing and
other uses, a School Site with Public Recreation, Connectivity, and a Development Agreement.
These commitments are reflective of the direction staff received previously from governing boards,
housing partners, and the community, and were established in the 2020 Resolution as land use
needs and goals to promote mixed-income housing opportunities; preserve environmental
features; protect historical and cultural resources; promote cost-effective infrastructure;
incorporate school and recreation sites; and earmark development areas for mixed income
housing and mixed use potential.
The project features a 10-month timeline, with 8 months dedicated to direct public engagement.
Over this timeline, Gensler and VHB will use a four-phased approach to provide these services to
the Greene Tract partners:
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o Phase A: Planning & Strategy, featuring an Engagement Strategy and
Communications Roadmap, and a Planning Report that includes Site Visit findings,
a Community Asset Map, and initial interview findings;
o Phase B: Engagement Implementation, featuring Design Workshop One: Vision
Launch and Alignment;
o Phase C: Synthesis & Initial Design Recommendations, featuring an Insights
Summary and Design Workshop Two: Community Co-Creation, that will result in
design recommendations for the master plan; and
o Phase D: Design Alignment & Ongoing Outreach (in coordination with the design
services consultant) featuring an open house and a Final Recommendations Report
and Master Plan Report
The consultant previously provided a scope of work that featured a more robust direct community
engagement program with many elements that repeated past efforts on behalf of development of
the Greene Tract, especially the Mapping Our Community's Future report. Reflecting direction
from the Board of Commissioners at its October 10, 2023 work session, staff directed Gensler to
omit several of the direct engagement services in the provided scope of work, consequently
lowering the cost of service. The revised scope of work will deliver:
1) 10 monthly staff meetings;
2) 3 community design workshops, including the final open house to present the master plan;
3) 3 progress presentations to meetings of the governing boards of the property owners; and
4) 10 monthly newsletters
Gensler did request modifications to the standard allocation of risks within the contract. Planning
& Inspections Director Cy Stober negotiated terms deemed acceptable but unburdens Gensler
from certain delays, lowering its standard of care, and making payments compulsory even if work
is not achieved to the County's satisfaction.
2021 Greene Tract ILA Community Engagement Commitments
The 2021 Greene Tract ILA includes a section on Public Participation that makes the following
commitments:
• The public engagement contemplated in this Agreement shall occur jointly. The Parties
shall not engage in individual staff or individual governing board public engagement.
• The Parties' staffs shall consult with affordable housing stakeholders to seek input
regarding preferred sites, special needs, connectivity, and any other information relevant
to the ultimate selection of the site(s) for affordable and mixed income housing.
• The Parties' staffs shall consult with school administration to seek input regarding preferred
sites, special needs, and any other information regarding the ultimate selection and/or size
of the site.
Project Steering: The Gensler proposal includes a project steering committee but does not
prescribe the composition of the Steering Committee. The project steering committee will be
composed as directed by the 2021 ILA, featuring planning staffs from all three jurisdictions,
representatives of the Affordable Housing community, a representative from Chapel Hill-Carrboro
City Schools, and representation from the Rogers Road-Eubanks Neighborhood Association. The
role of the committee would be:
• to review draft work products and provide feedback;
• provide guidance to the consultant team on the community engagement strategy; and
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• serve as a liaison between this consultant and the consultant selected for the Master Plan
Design services.
Both Gensler/VHB and the design services firm are obligated to work cooperatively on this project.
The Committee will meet with the consultant monthly through the planning process.
Prosect Presentation: The consultant will be required to make in-person progress presentations at
up to three (3) meetings of the governing boards of the property owners of the Greene Tract
(Orange County, the Town of Chapel Hill, and the Town of Carrboro) for direction and feedback.
Other community stakeholders represented in both the 2021 Greene Tract ILA and on the
Steering Committee may be invited to participate and comment at such meetings, at the discretion
of the property owners.
Based on the cost of the initial proposal, staff asked the consultant to develop a refined option
that will provide for service on a shorter timeline and at a lower cost, with a cumulative cost savings
of $125,200.
A complete list of Project Deliverables and Fee Schedule is provided as Attachment 1.
FINANCIAL IMPACT: The consulting cost proposal to complete the Greene Tract Master Plan
Community Engagement Services as presented in the scope of work is $244,800. Pursuant to the
2021 Greene Tract ILA, Orange County shall be responsible for $105,264 (43%) of these costs,
being reimbursed by the Town of Chapel Hill and the Town of Carrboro for $105,264 (43%) and
$34,272 (14%), respectively, of the total associated costs with this project. The costs of delivery
can be found in the Scope of Services in Attachment 1 .
SOCIAL JUSTICE IMPACT: The following Orange County Social Justice Goals are associated
with this item:
• FOSTER A COMMUNITY CULTURE THAT REJECTS OPPRESSION AND INEQUITY
The fair treatment and meaningful involvement of all people regardless of race or color;
religious or philosophical beliefs; sex, gender or sexual orientation; national origin or ethnic
background; age; military service; disability; and familial, residential or economic status.
• 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.
• CREATE A SAFE COMMUNITY
The reduction of risks from vehicle/traffic accidents, childhood and senior injuries, gang
activity, substance abuse and domestic violence.
• ESTABLISH SUSTAINABLE AND EQUITABLE LAND-USE AND ENVIRONMENTAL
POLICIES
The fair treatment and meaningful involvement of people of all races, cultures, incomes
and educational levels with respect to the development and enforcement of environmental
laws, regulations, policies, and decisions. Fair treatment means that no group of people
should bear a disproportionate share of the negative environmental consequences
resulting from industrial, governmental and commercial operations or policies.
• ENABLE FULL CIVIC PARTICIPATION
Ensure that Orange County residents are able to engage government through voting and
volunteering by eliminating disparities in participation and barriers to participation.
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ENVIRONMENTAL IMPACT: The following Orange County Environmental Responsibility Goal
impacts are associated with this item.
• CLEAN OR AVOIDED TRANSPORTATION
Implement programs that monitor and improve local and regional air quality by: 1)
promoting public transportation options; 2) decreasing dependence on single-occupancy
vehicles, and 3) otherwise minimizing the need for travel.
• 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. Authorize the expenditure of up to $244,800 for planning services to provide Community
Engagement Services for the Greene Tract Master Plan; and
2. Approve and authorize the County Manager to execute and sign the contract to provide
for the scope of services as detailed in Attachment 1 .
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ORANGE COUNTY'
FORTH CAROLINA
Community Engagement Services
for the Greene Tract Master Plan
RFP# 367-005388 N November 2, 2023 N REVISED
Gensler
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OnTechnical Approach
Technical Approach
The Greene Tract Master Plan is an opportunity to advance the Task 1: Project Coordination &Management
voice of a marginalized community and deliver a vision that has Gensler and VHB, herein referred to as"the Team,"will
been crafted through 40 years of discussion on this site.This coordinate and manage the community engagement strategy
community engagement effort is the conduit for the Greene for the development of the Greene Tract Master Plan with the
Tract Master Plan to deliver on this vision,and to, in turn,foster following tasks:
long-term trust and accountability between residents and local Identify a Staff Point of Contact—Jessica Pearson,design
institutions.These types of meaningful outcomes are the result manager and strategy lead will be the primary point of contact
of thoughtful,equitable community co-production—efforts that for the Gensler and VHB team.
this team is uniquely qualified to deliver.As a team of Strategists, The fee assumes monthly updates(10)to local government
Planners and Designers,we view equitable and collaborative staff to be held virtually.Additional coordination with Orange
engagement as foundational to delivering projects that are County staff may be required in early phases of the project or
aligned with community need. prior to key events.
• Provide a detailed work plan and schedule,developed in
At Gensler and VHB,we are guided by our values to create and conjunction with local government staff
uphold structural, procedural,and distributional equity within the Review and analyze existing plans,studies,assessments,and
communities in which we work.As a result,we believe that we related agenda items prepared by each of the three local
are ideally positioned to understand and translate the language governments
of the community's vision for the Greene Tract Master Plan into Visit the site and local Rogers Road neighborhood,with
a set of design criteria and planning principles that consider the government staff
specific challenges of developing the Greene Tract Site.We look Provide community engagement related materials and output
forward to partnering with the community to connect their vision documentation utilized during events.
to the design of the Final Master Plan. The team assumes bi-weekly meetings(up to 12 meetings)
with the Design team once selected for the duration of the
We understand the scope of work to be supported through four design process.
primary categories.
nity Engagede
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Task 2: Community Engagement Strategy& All four phases will include core team check-ins, regular meetings
Outreach with the Greene Tract Steering Committee, regular meetings
The Team will coordinate and meet with specialized staff and with the Master Plan design team,and three(3) progress
planning partners as well as attend meetings with identified presentations to meetings of the governing boards of the
stakeholders as part of engagement and outreach.The goal of property owners.
this phase is to enable co-production and activation of ideas
and collaboration with the Master Plan design team.The Team Phase A- Planning&Strategy
recognizes that this is far from the first planning effort that has In alignment with the timeline provided,we propose to start
happened in this community.The engagement strategies we the project with two months of Planning&Strategy through the
lead,grounded in social equity,will lean on previous planning, following activities and workshops.
engagement, institutional knowledge,and work to turn these into
a deliverable vision for the Greene Tract Master Plan. Data Gathering and Review
The Team will collect and review key materials relevant to the
The Team will develop and lead a community engagement community, including strategic planning documents and previous
strategy that includes in-person workshops and monthly community engagement summaries,to understand the history
e-Newsletters.Our team will lead a social equity strategy and objectives of previous work on the Greene Tract.
designed to collect inclusive,effective,and meaningful input from
the community.The strategy will prioritize diversity, race,and Staff and Planning Partner Alignment
equity components to engage communities of color. The team will meet with specialized staff and planning partners
as defined by the scope in the RFP to understand challenges,
Steering Committee:Steering of the project will be done by staff opportunities,and needs.The team assumes up to(8)interviews
from the three jurisdictions,in partnership with Rogers Eubanks or small group meetings to be held in person or virtually.Meetings
Neighborhood Association (RENA),affordable housing partners, may stagger beyond Phase A as relevant to the design process.
a representative from Chapel Hill-Carrboro City Schools,and
possibly transportation/transit. Site Visit
The Team will tour the existing site(s)with government staff
Task 3: Master Plan Process to understand current conditions and observe community
Over the course of the engagement work,the Team will develop interactions within the parks or space.Site photos and
a vision statement,mission statement,goals,and objectives for observations will be included in the documentation.
the future design and development of the Greene Tract.As the
project moves into design and development,our background and Develop Engagement Roadmap(ongoing)
experience uniquely position us to provide continued advisory We will work with the Steering Committee to identify appropriate
and strategy services in coordination with the design team. channels for outreach and engagement with potential to include
any of the activities outlined in our project timeline.The roadmap
Scope of Work with proposed activities by phase: looks at specific engagements over time across a spectrum of
We see the following phases and activities as being relevant for digital and analog channels.The roadmap is a living document
the community engagement in alignment with the Greene Tract that will evolve with feedback over the course of the engagement
Master Planning process: activities.The roadmap will also ultimately serve as a recorded
A. Planning&Strategy history for the community and project team,tracking frequency
B. Engagement Implementation and extent of engagement and outreach.
C. Synthesis&Initial Design Recommendations
D. Design Alignment&Ongoing Outreach Deliverables:
• Engagement Strategy and Communications roadmap
• Planning Report with synthesis from Site Visit,Asset map,
initial interviews,and Data Gathering
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Phase B — Engagement Implementation as they relate to this project. Using previous engagement as
In alignment with the timeline provided,we propose to launch a baseline,this workshop will use a design thinking approach
the engagement implementation phase after two months of based in equity and deliberation to identify shared interests.
Planning&Strategy with the following activities and workshops Options could include using collaborative problem-solving game
over the following two months.This approach assumes a design methodologies to facilitate shared understanding or topic led
team will be on board for Phase B and specific community events. brainstorming that explores design concepts.
Activities will be tracked on the engagement roadmap,which will
be used as a live document that will evolve with feedback over The team will present the initial focus areas,guiding principles,
the course of the engagement activities. and possible design priorities as part of a second facilitated
workshop.Through the workshop,we will develop a set of Design
We are proposing to facilitate design workshops with the design Criteria and Evaluation Measures that will inform the planning
team,distill input,and document the process. and design approach. Breakout sessions will be used to facilitate
deeper conversation around key topics and validate the initial
Design Workshop One:Vision Launch&Alignment approach.
The team will conduct an interactive and dynamic vision session,
typically lasting two to three hours for public stakeholders to The fee assumes up to 75 participants and approximately 5
engage and build a shared understanding of possibilities.With facilitators hosting the event. Logistics and coordination support
potential to co-host with a community partner like RENA,these relative to facility procurement,food and refreshments,or
large-scale meetings are meant to inform and educate the public translation,would be provided by Orange County planning
on the project status and coalesce priorities,vision,and goals for staff.The team will document feedback and create a summary
the development.The purpose of this meeting will be to re-ignite document. Recognizing that not all community members will be
public discussion on the Greene Tract,share the engagement able to attend these workshops,all content from these meetings
roadmap,and guide the public through a series of interactive will be posted online and made available to the public.
exercises to explore key areas of opportunity and challenge
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OnTechnical Approach
Phase C — Synthesis & Initial Design Design Recommendations
Recommendations The team will prepare a set of design recommendations to share
In alignment with the timeline provided,we propose to continue with the design team once they are selected and engaged on the
engagement after four months of Engagement Implementation project.
with the following activities and workshops over the next two
months,as team synthesizes the various activities and feedback into Deliverables:
an initial set of design recommendations. • Insight Summary
Insights Summary and Guiding Principles Phase D — Design Alignment & Ongoing Outreach
Utilizing all the input gathered from the vision launch, interviews, All activities completed during the design phase are in
and workshops,our team will synthesize collected input and close collaboration with the design team to make sure the
develop a set of project specific guiding principles and design opportunities for decision making are clear and actionable. In
priorities/strategies for the project design team,as well as local alignment with the timeline provided,we propose to continue
government stakeholders. on-going outreach after two months of Synthesis&Initial
Design Recommendations,with eight months of outreach and
Design Workshop Two:Community Co-Creation engagement in alignment with the development of the design.
Recognizing that the deliberation process is not linear,rather it is
one that moves between naming,framing,deciding,organizing, Final Open House/Celebration
and learning,this is a time to review information created from the This final event celebrates how community members worked
previous workshop and other engagement sessions to determine together to develop a set of design criteria according to the
what adjustments and further alignment is needed.The team will outcomes they want to achieve and how the Master Plan will
engage the community in a workshop that investigates planning impact equity in and outside of the Greene Tract community.
scenarios in a highly interactive way. Part presentation,part design- The open house format leverages physical installations or digital
charrette,the team will present two planning options and invite presentations in community assets such as community centers,
participants to post sticky notes and draw or diagram their ideas. parks,greenways,churches,or other public facilities.This format
During this session,the team will share key themes,opportunities, presents the opportunity to maintain trusting relationships
and questions revealed through research and provoke participants by sharing project stories, relevant project information,and
with innovative concepts primed for reaction.The Team will share transparency in the connection between final design criteria and
speculative scenarios informed by research,driven by stakeholder community input.This open house culminates in an event that
goals and validated through end-user perspectives.The design celebrates the final recommendations and could include public
workshop would be planned in collaboration with the design team art installations or other activations. Ideally,this event will be co-
for their input and participation. created with Steering Committee,who help the Team set up an
event most appropriate for the community.
The fee assumes up to 75 participants and approximately
5 facilitators hosting the event. Logistics and coordination The fee assumes up to 75 participants and approximately
support relative to facility procurement,food and refreshments, 5 facilitators hosting the event. Logistics and coordination
or translation would be provided by Orange County planning support relative to facility procurement,food and refreshments,
staff.The team will document feedback and create a summary or translation would be provided by Orange County planning
document. Recognizing that not all community members will be staff.The team will document feedback and create a summary
able to attend these workshops,all content from these meetings document.
will be posted online and made available to the public.
Deliverable:
• Final Recommendations Report and Master Plan Report
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M' M Technical Approach
Scope Includes
• 10 monthly staff meetings
• 3 workshops
• 3 progress presentations to meetings of the governing boards
of the property owners
• 10 monthly newsletters
Assumptions and Exclusions
• The provided scope and roadmap reflect an efficient and
creative approach to meeting your engagement goals as
outlined in the RFP.Activities may be scaled up or down as
desired to further adapt to milestones or timelines as needed.
Venue rentals,food/drinks,and other costs related to event
logistics have not been included in the reimbursable number.
The team assumes logistic support will be provided by the
Orange County staff as needed for in-person engagements.
• Orange County staff will be responsible for translation services
at design workshops.
• Current duration of the project is estimated at 10 months
or 40 weeks for delivery of the final report.Should the
project timeline extend,additional services will be necessary
to support ongoing coordination meetings as well as any
additional scope.
• The team understands the milestone targets as outlined in the
RFP.
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'M® Total Cost
Total Cost
Tasks Fee Notes
Task 1: Project Coordination Reflects ongoing meetings and project
and Management $54,000 alignment with Orange County staff,
engagement team, and design team.
Task 2: Community
Engagement Strategy Task $90,800 Aligns with Phases A and B
Task 3: Master Plan Process $80,000 Aligns with Phases C and D
Printed Materials, Event and Facilitation
Estimated Reimbursables $20,000 NTE Materials and Supplies, as well as travel
TOTAL $244,800 Includes fees and estimated reimburable expenses
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