TO: Board of Supervisors
FROM: Steven Lederer - Director of Public Works
REPORT BY: Steven Lederer - Director of Public Works
SUBJECT: Facilities Master Planning-Summary of Completed Report for Board Review and Potential Action
RECOMMENDATION
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SET MATTER - 2:00 PM (Facilities Master Plan)
Receive the Facilities Master Plan report prepared by Gensler and provide direction to staff. (No fiscal impact)
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BACKGROUND
On January 31, 2023, the Board initiated a Facilities Master Planning process to assess current county facilities, identify needs, and perform a study to provide several possible options for the Board to consider remedying for the next several decades.
The County last completed a Facilities Master Plan (FMP) in 2011, before purchase and relocation of HHSA to the South Campus and development of the replacement jail. The 2011 Study (including employee growth projections) is out of date. Most County Departments are currently out of space to house even their current needs, several county facilities need significant maintenance, and the Board previously voiced a strategic interest in selling the 1127 First Street facility. As such, the Board directed that an updated plan be developed.
Staff described our current resources as follows:
1195 Third Street (Administration Building)
1127 First Street (formerly known as Carithers)
650 Imperial Way
Sullivan Parking Lot (bounded by Coombs St./Fourth Street/Randolph St./Third Street)
Existing Hall of Justice (HOJ)/Jail (available in 2025)
South Campus (includes Buildings A&B - HHSA) 1A & 3 (warehouse with long term lease to 2035), and Building 4 (mixed county use and under lease to state and federal elected officials)
Other facilities of note with possibilities (but limits):
Re-Entry (financially restricted by agreements with the State through 2030, possibly the permanent home for the Probation Department)
2000 Airport Road (FAA rules limit use for non-aviation purposes, market rate leases)
1710 Soscol Road (privately owned space leased for Agricultural Commissioner)
960 Kaiser Road (privately owned space leased for Records storage)
Juvenile Justice Center (no unused space available)
Flood Building (owned by Flood District) at 804 First Street (very limited parking/space)
The County conducted an RFQ process and in May contracted with Gensler, one of the leading architectural firms in public facility analysis and design. Their work included:
1. A space and adjacency study to inventory existing space and employees, and then to apply escalation factors into the future, to identify projected space needs. The study also provides recommended space standards.
2. Analysis of the impact of remote work.
3. A comprehensive review of the condition of our existing facilities (including seismic stability) and the benefit of keeping these buildings versus constructing new.
4. The sequence of development to avoid the need for “swing space” as much as practical.
5. Parking-provide enough parking wherever we decide to put people.
6. Determine if there was an opportunity to share space with the City of Napa.
Some of the principles that were considered include:
a. Examining the optimal location of departments.
b. Which departments need to be downtown.
c. Public access and customer service/convenience;
d. Cost;
e. Employee satisfaction; and
f. Environmental impacts.
The consultant’s report (see attached report and presentation slides) provides a discussion of all the analysis conducted, several recommendations, and the backup data that support those recommendation. The options are summarized here as follows (please note these cost numbers are estimates in 2024 dollars which will be refined over time and ultimately be determined by the timing of construction and the public bidding process):
Option 1 - New Facility on the Sullivan Block
Consolidate most departments in Downtown Napa;
Construct a new building on the Sullivan Parking Lot;
Renovate the Administration Building (including seismic upgrades)
Construct additional parking facilities
Vacate and Surplus 650 Imperial Way and 1127 First Street facilities
Demolish the HOJ/Jail Complex, relocate Core Radio System, construct a Court “Day Holding” facility
Cost: $222.2 million
Timeframe: 8-10 years
Option 2a - Renewed Hall of Justice
Consolidate most departments in Downtown Napa;
Renovate the Hall of Justice/Jail Complex (including seismic upgrades)
Renovate the Administration Building (including seismic upgrades)
Construct additional parking facilities
Vacate and Surplus 650 Imperial Way and 1127 First Street facilities
Cost: $199.8 million
Timeframe: 9-10 years
Option 2b - Replacement Hall of Justice
Same as 2a, but with demolition of existing HOJ/Jail Complex and construction of a new building on site;
Relocate Core Radio System, and construct a Court “Day Holding” facility;
Cost: $204.4 million
Timeframe: 8-10 years
Option 3 - South Campus Full Relocation
Consolidate most Departments at South Campus;
Renovate existing Building 4
Construct a new Building 5
Construct new parking structure
Vacate and Surplus Administration Building, 650 Imperial Way, and 1127 First Street facilities
Demolish the HOJ/Jail Complex, relocate Core Radio System, construct Court “Day Holding” facility
Cost: $208.7 million
Timeframe: 6-7 years
Option 4 - South Campus Partial (Staff Recommendation)
Renovate Administration Building to keep BOS, CEO, County Counsel and court dependent departments (Public Defender, District Attorney, and Child Support Services) downtown
Renovate Building 4 at South Campus for Assessor-Recorder-County Clerk-Elections, Treasurer-Tax Collector, Public Works, Auditor-Controller, Planning and Building Departments
Renovate 650 Imperial Way facility for ITS and CSOA
Rehabilitate 1127 1st St. HVAC/Roof, and then in 5-6 years vacate and surplus the facility
Demolish the HOJ/Jail Complex, relocate Core Radio System, construct a Court “Day Holding” facility
Cost: $140.1 million
Timeframe: 5-6 years
Option 5 - Maintain the Status Quo (Does not meet Board’s stated goals)
Retain all existing buildings and keep all departments in existing locations;
Schedule capital improvements to existing portfolio to keep them operational;
Seek additional workspace incrementally;
Demolish the HOJ/Jail Complex, relocate Core Radio System, construct a Court “Day Holding” facility;
Not really a viable option.
Cost: $190.2M
Timeframe: Ongoing
Staff recommends adoption of Option 4, the South Campus Partial Option. Though not in any order of priority, this recommendation is based primarily on:
1. It’s the fastest to deliver.
2. It’s the least costly to deliver.
3. It leaves Governance functions downtown where the public is used to finding them.
4. It leaves Justice functions downtown for timely court access.
5. It creates a single location for most other departments to co-locate at South Campus.
6. It does not require significant “swing space” or building of a new parking structure. It will require that alternate space be found for elected officials leasing space, the 20 county employees, and for warehouse functions located in Building 4 currently.
7. It leaves the Board with maximum flexibility to determine optimum uses for 1127 First Street, the Sullivan block, the HOJ/Jail Complex, and the vacant parcel at South Campus.
8. As this option does not create any new facilities, it results in the most-environmentally friendly, simplest, and most timely CEQA process.
With Option 4, for an estimated $140 million, the County will get:
1. A fully rehabilitated and seismically strengthened Building 4;
2. A fully rehabilitated and seismically strengthened Administration Building;
3. The HOJ/Jail Complex removed and a new court holding facility constructed connecting to the Courthouse, and movement of critical communications equipment to a new location;
4. A remodeled and improved 650 Imperial Way facility;
5. Additional community and employee spaces, a new Board Chambers, and vastly improved employee workspace with sufficient growth space for at least two decades.
It does not include several other possible, but independent projects:
1. Probation will be relocated to the former re-entry facility if legal barriers can be resolved.
2. Agricultural Commissioner’s office lease expires at the end of 2025. At that time alternate locations (either leased or purchased) could be considered.
3. Improvements for HHSA space at South Campus.
Next steps/major sequence of events with Board direction:
1. Conduct a Request for Qualifications (RFQ) process to contract with a single architect to design all the facilities (4 months). $10 million in Capital Improvements fund has been identified for design and other efforts prior to construction.
2. Commence design process (includes CEQA), projects will be designed concurrently, prioritizing Building 4 (about 18 months).
3. Issue debt for construction. A financing team of staff and consultants will assess options and prepare a recommendation to align with the construction bid award. One option anticipates principal and interest payments totaling $9 million/year for thirty years.
4. Vacate Building 4 (terminate elected officials leases/ITS Communications/storage/Property Maintenance
5. Reconstruct Building 4 (18-24 months).
6. Use Building 4 as swing space to vacate the Administration Building.
7. Reconstruct Administration Building (18-24 months)
8. Relocate departments from 1127 First Street and Building 4 to Administration Building and Building 4.
Total time (best case) = 5-6 years
The upgrade of 650 Imperial Way, the demolition of the HOJ/Jail Complex, and construction of the day court holding facility are not critical path and will be completed as time allows.
Any of these options result in employees remaining in 1127 First Street facility for 5-6 years or more. As previously informed, the HVAC system at 1127 First Street is aged, severely stressed, taken offline during the heat wave last summer, and could fail at any time. Failure would disrupt operations located in the building and would result in costs to either repair the unit and/or relocate county employees. Given the long timeline to permanently relocate employees from this building, staff recommends the County move forward with the HVAC/roof replacement project at a cost of about $6 million. The cost of renting alternate space, improving that space, moving employees, and then moving them again, will exceed the cost of improving the existing building. Design specifications will be presented for authorization to bid later this spring.
PROCEDURAL REQUIREMENTS:
1. Staff report.
2. Public comments.
3. Discussion and provide direction to staff.
FISCAL IMPACT
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Is there a Fiscal Impact? |
No |
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Is it currently budgeted? |
No |
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Where is it budgeted? |
Sufficient funding will be appropriated next fiscal year to for an Architect/Design consultant. Funding (estimated at $10M) would come from the Capital Improvements Fund. Construction would be funded by borrowing, resulting in an approximately $9 million/year debt payment for 30 years. |
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Is it Mandatory or Discretionary? |
Discretionary |
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Discretionary Justification: |
Current County facilities are inadequate to meet the current or future needs of County staff or their customers. Failure to act will result in unsafe facilities and inability to provide services to the public. |
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Is the general fund affected? |
Yes |
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Future fiscal impact: |
Design funding would be expended starting in Fiscal Year 2024-25, and additional funding as described in the various options would be required for an additional 5-10 years (depending on the building and financing options chosen). |
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Consequences if not approved: |
Staff will not have direction as to next steps with the FMP process. Alternative repair and leasing solutions will be presented. |
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ENVIRONMENTAL IMPACT
ENVIRONMENTAL DETERMINATION: The proposed action is not a project as defined by 14 California Code of Regulations 15378 (State CEQA Guidelines) and therefore CEQA is not applicable.