2001-01-18 Work Session
NEW HANOVER COUNTY BOARD OF COMMISSIONERSBOOK 28
WORK SESSION, JANUARY 18, 2001 PAGE 385
ASSEMBLY
The New Hanover County Board of Commissioners held a Work Session on Thursday,
January 18, 2001, at 5:30 P.M. in Room 501, the New Hanover County Administration Building, 320
Chestnut Street, Wilmington, North Carolina.
Members present were: Chairman Ted Davis, Jr; Vice-Chairman Robert G. Greer;
Commissioner Julia Boseman; Commissioner William A. Caster; Commissioner Nancy H. Pritchett;
County Manager, Allen O’Neal; County Attorney, Wanda M. Copley; and Clerk to the Board, Lucie
F. Harrell.
Chairman Davis called the Work Session to order and stated the purpose of the meeting was
to hear status reports from architects on the Jail Project, Judicial Building Expansion and Associated
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Parking Deck, Administration Building, and 3 Floor Renovation of the Library. He welcomed
persons attending the meeting and reminded them that no comments would be received since this was
a meeting for dialogue to occur between the Commissioners, Staff, and Architects.
Chairman Davis requested County Manager O’Neal to begin the presentations.
County Manager O’Neal advised that the purpose of the Work Session was for the County
Commissioners to hear brief presentations on each capital project followed by a question and answer
period. He requested the Board to consider making decisions on these projects at the regular meeting
scheduled for January 22, 2001.
County Manager O’Neal introduced the following persons to comment on the Jail Project:
Sheriff Sonny Lanier: Recommended Scope
Hank Miller and Pete Buskirk, Miller Building: Schedules and Budgets
Charlie Reed, Freeman White: Renderings
Pete Buskirk, Miller Building: Current Issues
Status Report on the Jail Project
Sheriff Sonny Lanier advised that while serving as Sheriff for the past four months, a great
deal of discussion had occurred with members of the Sheriff’s Department and Staff about the
proposed plan for the new Jail to be located on the Blue Clay Road site. A consensus has been
reached among the group for the Sheriff’s Administration, Records, Civil, Detectives, Vice-Narcotics,
and Support services to remain in the existing Law Enforcement Center. The reason for this
recommendation is the importance of maintaining a central location for the convenience of the public
and other criminal justice agencies. The 911 Center is currently being upgraded and will eventually
be under the management of the County Manager. When the old jail space is vacated, there will be
room to expand the 911 Center and meet other space needs. The Detective and Vice-Narcotics just
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moved into the 3 Floor of the BellSouth Building, which is a nice facility located in close proximity
to the Law Enforcement Center.
Other recommendations made by Sheriff Lanier are as follows:
Move the Uniform Patrol Division to the Jail Facility on Blue Clay Road:
1. The Patrol
Division is currently housed at the old Airport Terminal. When the Patrol Division was
originally moved to the airport site, it was to be a temporary arrangement. With the number
of repairs needed to the old terminal, a sufficient amount of money will be required to
upgrade this facility. Relocation of the Patrol Division to the Blue Clay Road site will better
accommodate the functions of the Sheriff’s Department.
NEW HANOVER COUNTY BOARD OF COMMISSIONERSBOOK 28
WORK SESSION, JANUARY 18, 2001 PAGE 386
Include the Work Release Facility as Part of the Jail Project:
2. Chief District Court Judge
John Smith has clearly noted judicial concern over the need of a facility to support a Work
Release Program in the new Jail. With three-fourths of District Court probation revocations
involving failure to pay fines or restitution to victims, this facility and program are needed.
The Work Release Program allows persons incarcerated for lesser crimes to work, which
saves money for New Hanover County, particularly in failure to pay child support cases.
Include the 40 Bed Dormitory Area as Part of the Jail Project:
3. This area is needed to
provide rooms for trustees that work in the Jail.
Chairman Davis opened the floor to receive questions or comments from the members of the
Board.
Vice-Chairman Greer asked if some of the extra beds at the new jail could be utilized as the
Work Release area in lieu of building another section.
Sheriff Lanier responded that use of extra beds was a possibility, but he reminded everyone
that the Court System has focused on lowering the jail population during the past two months to
avoid the filing of a lawsuit. He stated that presently the jail population is 278 including 44 inmates
in out of county facilities. The major point to consider is how long the Court System will be able to
maintain the reduced jail population.
Deputy Sheriff Steve Smith agreed with the remarks made by Sheriff Lanier and stated that
once the new jail is open, the Judges and Court System will not continue to focus on keeping a
reduced jail population. He advised that Judge Smith requested him to inform the Board that the
current jail population is an artificially deflated number of inmates. Many inmates are being sent to
the Department of Correction and Judges are allowing people to participate in other programs that
are not normally used. The Court System cannot continue to perform this type of operation on a
long-term basis.
Deputy County Manager Atkinson explained that the pods where jail beds are located have
never been considered for the Work Release Program because the persons on work release must be
able to go in and out of the facility without going into the secured portion of the jail. Work release
people drive up, check in, and should be separated from regular jail cells.
Vice-Chairman Greer asked if it would be cheaper to hire more people for the Court System
in lieu of constructing more jail space.
Deputy County Manager Atkinson explained that people who should be tried are out on bail,
which means there is no supervision over these people. The length of time they are out on bail has
greatly increased to keep the population deflated and many of these people are committing crimes.
Deputy Sheriff Smith explained that the pods in the new Jail were designed to properly
classify inmates. Due to the inability to classify inmates in the Law Enforcement Center, thousands
of dollars have been paid in lawsuits and medical expenses. He also noted that many techniques have
been used in the last two months by the Court System to reduce the jail population in a crisis
situation. Many of these innovative methods will continue to be used through the use of programs
in order to avoid overcrowding of the new Jail.
Chairman Davis asked if a separate building was needed for a dormitory to be constructed for
the trustees.
Mr. Charlie Reed, a representative of Freeman White, showed a rendering of a building
separate from the main security portion of the new Jail with a separate access for parking. There is
a connection to the service yard for delivery of meals. The purpose of the Work Release area is to
allow people who have been sentenced or awaiting trial to work and avoid mixing with the daily
population in the secured jail. The building for the trustees is within the secured area, and these
NEW HANOVER COUNTY BOARD OF COMMISSIONERSBOOK 28
WORK SESSION, JANUARY 18, 2001 PAGE 387
inmates work within the facility such as the kitchen or laundry; however, the 40 bed dormitory is less
expensive to construct.
Vice-Chairman Greer requested an explanation of where the Patrol Division of the Sheriff’s
Department will be located.
Mr. Reed showed a rendering of the original location of administrative space for the Sheriff‘s
Department and stated that the Patrol Division would be located in a portion of that space. Currently,
it is estimated that 7,500 square feet will be needed for the Patrol Division. The remaining portion
will be preserved for a future expansion of the new Jail. Very little cost will be involved with
designing this space.
Commissioner Boseman requested an explanation of how money will be saved by eliminating
the administrative space for the Sheriff.
Mr. Reed responded that approximately $4.78 million would be deleted from the original cost
with $900,000 added back to the cost to provide space for the Patrol Division.
Commissioner Caster requested an estimated cost of renovating the Law Enforcement
Building if the administrative space remains in this building.
Mr. Reed responded that the cost will depend upon whether the modifications will be made
for short or long term use. The Sheriff is currently housed in the facility and Detectives and Vice-
Narcotics Division are located in the BellSouth Building, which is an advantage if this option is
selected.
Sheriff Lanier explained that a roof cover has eliminated the problems with leaking, but the
water intrusion problem around the perimeter of the building will have to be addressed. At this time,
no cost has been estimated for the renovation.
Commissioner Caster stressed the importance of everyone understanding that Sheriff
McQueen was not opposed to moving the administrative space to the Blue Clay Road site. Discussion
was held with Sheriff McQueen at various meetings and it was never a problem; however, after
hearing the reasons from Sheriff Lanier, he would not object to this option if money is going to be
saved and the Law Enforcement Building is worth the renovation cost.
Sheriff Lanier responded that the proposed option should save money and he again reiterated
the importance of maintaining a presence in the downtown area.
Commissioner Caster expressed concern for the Board being led to believe that the Law
Enforcement Building was not worth saving.
Mr. Greg Thompson, County Project Engineer, explained that under Option I, the cost for
improvements to Law Enforcement Center were estimated at $4,340,000 to address the exterior
water infiltration problems and leaking windows.
County Manager O’Neal stressed the importance of everyone understanding that if the
existing Law Enforcement Building is extensively renovated on the exterior and interior, it will not
last for 20 years. According to the architects, the renovations will allow the Law Enforcement Center
to be used for 10 years.
Deputy County Manager Atkinson explained that if the building is renovated, it will provide
an opportunity for some costs to be deferred. In 8 to 10 years, the remaining divisions of the Sheriff’s
Department can be relocated to the Blue Clay Road site without a great deal of associated costs.
Mr. Hank Miller, CEO of Miller Building, expressed appreciation to the Board for an
opportunity to discuss the Jail project and reported that the company was excited about being the
project expediter. He requested Mr. Pete Buskirk to discuss the schedules and budgets.
NEW HANOVER COUNTY BOARD OF COMMISSIONERSBOOK 28
WORK SESSION, JANUARY 18, 2001 PAGE 388
Mr. Buskirk reported that two of ten bid packets have been contracted within the budget for
the early site work and precast concrete cells. Every milestone in the design phase has been met. The
project is on schedule and the budget has been priced four times and estimated in different phases
with completion of drawings. The estimated cost has remained consistent and every effort is being
made to maintain the required quality and stay within the budget. When comparing the cost of a new
jail being constructed in Cumberland County, the dollars per square foot were more and the dollars
per bed were much greater than in the New Hanover County jail.
In closing, Mr. Buskirk advised that Miller Building has worked successfully with the
Minority Business Program and Economic Inclusion Program and stated that the project was on
schedule.
Mr. Pat McCracken, a representative of Miller Building, reported that the project was under
budget and the firm feels confident that figures presented are accurate estimates, which means that
other bids received should be within the projected cost. The cost includes a 10% construction
contingency and a 10% furniture, fixtures, and equipment contingency. A conservative approach has
been taken and once numbers are in, the budget can probably be reduced. Mr. McCracken also
presented a time schedule for the Jail project and advised that the building should be completed by
September 6, 2002, which is one month ahead of the occupancy date. On October 7, 2002, the new
Jail will open for business. Due to permitting issues, the bidding schedule has been delayed for two
weeks. Sufficient contingency is built into the schedule to handle this short delay.
Mr. Reed reported that the original facility was designed to be 240,000 square feet.
Approximately 55,000 square feet will be removed to eliminate the administrative space for the
Sheriff. The project has two different building footprints with an L-shape base for jail support and
other support functions of the Sheriff. This footprint was designed to be a straight forward structure
that is reasonably priced and flexible. The footprint for the inmate housing is designed to provide
direct observation by one officer over one housing unit. This process has proven to be the most cost
effective way to manage the inmate population. The mainstream population will be within a secure
perimeter, but within each unit the inmates will be allowed a certain amount of freedom in exchange
for obeying the rules. The group that breaks the rules or inmates under certain classifications will be
in special segregated units with a more restrictive environment. There are six 64 bed units with
double cells for the male population in the mainstream classification. If needed the double cells can
be made into single cells. There is a female facility to handle all classifications and there is a section
for juveniles. There is also a 48 bed male maximum security unit for inmates that need to be isolated.
Visitors are brought through a non-secure corridor and can visit with inmates through a secure
window which eliminates staff from having to move inmates out of their units.
Commissioner Boseman asked how lawyers would visit inmates.
Mr. Reed responded that a lawyer could meet with an inmate through a non-contact visit by
going through the corridor and meeting in the housing unit, or private visits can be arranged in the
four booths located off the main office in the intake area. Bondsmen can also visit with inmates in
the booths. The facility is also set up for video first appearances at this time.
In closing the presentation, Mr. Hank Miller advised that he wanted to assure the Board that
he would meet with County Staff and agencies that have issued the notices of violations. He also
assured the Board that any additional costs from the fines or delays would not be paid by the
taxpayers.
Chairman Davis expressed appreciation to Mr. Miller for the statement and noted that further
discussion of this issue would be held at the meeting scheduled for Monday, January 22, 2001.
County Manager O’Neal spoke on visiting a similar jail facility in Florence, South Carolina,
and stated the tour helped him to better understand the benefits of building a pod system. He offered
to arrange a visit for Commissioner Boseman and Commissioner Pritchett to tour the facility.
NEW HANOVER COUNTY BOARD OF COMMISSIONERSBOOK 28
WORK SESSION, JANUARY 18, 2001 PAGE 389
Status Report on the Judicial Building Expansion and Associated Parking Deck
Mr. Bruce Bowman, BMS Architects, reported that expansion of the Judicial Building started
January 2, 2001. The expansion is a 6-story expansion with 50,000 square feet of new space and
approximately 50,000 square feet of renovation in the existing Judicial Building. This will be a 16-
month construction project. Renderings of the expansion were presented showing the streetscape
of the project and design of the expansion. When dealing with the site utilities, a large storm drain
was found and a main phone line serving the Historic Courthouse. Plans are being made to work
around these utilities, and all permits have been received for the project.
The following construction project schedule was presented:
Phase 116 Months Total (480 days)
Construct new building
Phase 1A7 months total
Renovate Jail and Juvenile Court for D.A. 6 months
Move D. A. (west offices) to Level 5 1 month
Phase 1B5 months total
Renovate existing D. A. space for Register of Deeds 4 months
Move Register of Deeds Office to Level 1 1 month
Phase 1C4 months total
Renovate existing Register of Deeds space for Clerk and 3 months
access to new building
Extend public corridor on Level 4
Temporarily move Criminal Clerk to estates area & archive vault 1 month
Occupy New Building 1 month
Move D. A. (east offices) to level 5
Occupy new large District and Superior Courtroom
Temporarily move Small Claims Court to District Courtroom Level 1
Move Law Library to rear of Level 2
Move suites for Judges and Trial Court Administrator to Level 3
Move D.A. Domestic Units to old T.C.A. location
Phase 2A9 months total
Renovate Level 1 - Clerks space 4 months
Extend and connect secure tunnel
Renovate Small Claims Court for vital statistics
Renovate former suite for Judges
Renovate Law Library and entrance
Connect Level 2 vaults for clerks
Upgrade finishes in existing courtroom in rotation
Renovate Courtroom 317 and support spaces
Infill floor at Jury Assembly
Move Vital Statistics from Historic Courthouse, move Criminal 1 month
Clerk back to Level 1 and expand Civil Clerk into former Law
Library
Phase 2B4 months total
Move Civil Clerk to estates
Perform minor renovations and new finishes in Civil Clerk’s3 months
area (entrance to vault from estate side temporarily)
Renovate coffee shop, west stairs and hearing room
Remove storage and Clerk rooms from old Register vaults and
repair finishes
NEW HANOVER COUNTY BOARD OF COMMISSIONERSBOOK 28
WORK SESSION, JANUARY 18, 2001 PAGE 390
Move Civil Clerk back to original and expanded locations 1 month
Move Small Claims Court to Level 5
Total - All Phases25 Months (750 Days)
Mr. Bowman informed the Board that when the Special Use Permit was approved by the City
of Wilmington it was subject to providing 300 parking spaces within 650 feet of the site at the time
the Judicial Building expansion was ready for occupancy. Under the current construction schedule,
the parking deck should be completed by April 2002 so the Certificate of Occupancy can be permitted
for occupying the new expansion.
Mr. Greg Thompson, County Project Engineer, noted that in the letter received from Mayor
Jones, reference was made to 500 required parking spaces instead of 300 parking spaces as stipulated
in the Special Use Permit.
Chairman Davis informed the Board that he planned to respond to the letter and stated that
he would reference the correct number of spaces in the response.
Discussion followed on security measures being taken for the Judicial Building expansion.
Mr. Bowman explained at the entrance on Chestnut Street, there will be metal detection equipment
with a security guard and there will be a closed circuit security system in the facility with 38 cameras
and monitors. Behind the dias for each Judge, there will be a bullet resistant panel as well as an
emergency call button. Card swipes will also be used to avoid having to change locks.
Commissioner Caster complimented Mr. Bowman for installing security measures and stated
sooner or later an unpleasant event will occur.
Vice-Chairman Greer asked if the parking spaces being leased from the City for jurors will
be alleviated when the new parking deck is constructed on the Library site.
Deputy County Manager Atkinson responded that jurors will be parking at the new deck and
the County will not lease parking spaces from the City at approximately $70,000 to $80,000 per year.
Also, parking spaces for employees are being leased at the Azalea Inn at a cost of $6,000 per month.
This lease will also be terminated when the new deck is completed.
Commissioner Pritchett asked if any parking for employees, judges, etc. would be available
on the site when the Judicial Building expansion is completed.
Mr. Bowman responded that 29 parking spaces will remain on the site after construction for
judges, elected officials, visitors parking for the Convention and Visitors Bureau, and other court
personnel.
On behalf of the Board, Chairman Davis expressed appreciation to Mr. Bowman for the
presentation.
Status Report on Administration Building and Parking Deck Projects
Mr. Rick Collins, Sharpe Architecture, introduced Mr. John Parker, the Project Manager, and
advised that he would discuss the Library portion of the presentation.
Mr. Collins presented the site plan for the proposed New Hanover County Administration
Building and Parking Deck. The Parking Deck will be located on the corner of Third and Grace
Streets consisting of 6 levels with 620 spaces. The main access to the deck will be off Second Street
with a new driveway to the Library loading dock. The deck mass will be pulled back from the
streetscape to provide a trellis to make an attractive view from Third Street.
A schedule was presented on the completion date for the Parking Deck. Mr. Collins informed
the Board that in order for the Parking Deck to be completed by April 2002, construction must begin
in June 2001. The bids proposals must be submitted no later than March 1, 2001. A decision on the
NEW HANOVER COUNTY BOARD OF COMMISSIONERSBOOK 28
WORK SESSION, JANUARY 18, 2001 PAGE 391
scope of the project must be made by the Board of County Commissioners as soon as possible if the
deck is to be completed when the expansion of the Judicial Building is ready for occupancy. A
decision should also be made on whether to construct a 3-story Administration Building or a 6-story
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Administration Building. Direction should also be provided on whether the 3 Floor of the Library
will be renovated. Construction documents have been completed for all of the proposed projects.
The next step is to move forward with bids.
If a decision is made to leave the Sheriff’s administrative functions in the Law Enforcement
Center, the components of the projects will change as follows:
1.6-Story Parking Deck, 620 Spaces
2.Library Renovations
3.3-Story Administration Building to Replace the Annex Building or
4.6-Story Administration Building to Replace Annex and provide space for IT & EOC with
one floor for future expansion
5.Demolish Annex Building and Provide a Parking Lot
6.Limited Renovations to Existing Administration Building
Charts were presented showing the total cost of the projects:
Parking Deck$ 8,346,851
3-Story Admin. Bldg./Demolish Annex 7,440,496
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3 Floor Library Renovation 3,480,210
Renovations to Existing Admin. Bldg. 1,465,767
Total$20,733,324
Parking Deck$ 8,346,851
6-Story Admin. Annex Replacement 13,024,915
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3 Floor Library Renovation 3,480,210
Renovations to Existing Admin. Bldg. 1,394,463
Total$26,246,439
Commissioner Boseman referenced discussion of constructing an Administration Building
with the City and asked if this issue was being addressed.
Chairman Davis commented on discussing the possibility of jointly constructing a Parking
Deck and Administration Building with Mayor Jones and he suggested bringing up this topic at the
joint meeting scheduled for January 22, 2001. He stated if the County is sure that the City is not
interested in participating in these projects, the Board can move forward with making a decision on
the proposals.
In concluding the presentation, Mr. Collins requested the Board to provide direction on the
scope of work within the next two weeks, particularly if the Sheriff’s administrative space is to remain
in the Law Enforcement Building.
Chairman Davis expressed concern for on-going capital projects and the amount of money
that will be spent which will increase the tax rate. He requested the members of the Board to
consider this factor when rendering a decision.
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Status Report on Renovation of the 3 Floor of the Library
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Mr. John Parker reported that the renovation project for the 3 Floor of the Library would
be a 24,000 square foot project that would be accessed directly from the Parking Deck. The front
entrance to the Library on the ground level from the Parking Deck will be redeveloped to
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accommodate patrons. The renovation will also include a significant renovation of the 2 Floor as
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well as minor items on the 1 Floor. The 3 Floor will be used to accommodate the Library
Administrative Staff and approximately 25-30% of space will be used for an open conference room
for use by the public. The projected cost of the project is as follows:
NEW HANOVER COUNTY BOARD OF COMMISSIONERSBOOK 28
WORK SESSION, JANUARY 18, 2001 PAGE 392
Renovation Construction$2,556,067
IT 50,000
Furniture 294,935
Move 8,000
Subtotal$2,919,002
Contingency @ 5% 145,950
Fees 415,258
Total
$3,480,210
The cost for developing the site to access the Library has been included in the cost of the
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Parking Deck as well as a connector to access the 3 Floor of the Library.
Discussion was held on moving forward with the Parking Deck and waiting to renovate the
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3 Floor of the Library. Deputy County Manager Atkinson explained that cost wise, it would be
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more economical to tie in the 3 Floor to the Parking Deck when the deck is being constructed. The
connector should be made during the construction process.
Deputy County Manager Atkinson referenced the copy of a memorandum to County Manager
O’Neal and City Manager Gornto regarding a joint City and County office complex. He advised that
he and Deputy City Manager Bill Whisnant met with representatives from Sharpe Architects to study
the possibility of jointly sharing the planned 6-story Administration Building with 3 floors assigned
to the City and 3 floors assigned to the County. After discussion on the functions of the two
governing bodies, it was decided that the building was not designed to accommodate the needs, and
the footprint of the building was too small. If both governing bodies would like to share office space,
a single joint local governmental center should be constructed on a single site. This type of center
would have a large building footprint that would meet current and future space needs.
If both governing bodies want to pursue a joint complex, the Parking Deck could be
constructed as planned in order to provide parking for the expansion of the Judicial Building. The
next steps would be a space needs analysis, development of a plan, and finding a site large enough
to accommodate a governmental complex which could be costly in the downtown area. With the
current need for space by the City and County, this process should be well planned and started as
soon as possible. One positive aspect of moving forward with a County Administration Building on
the Library site is the proximity of that building to the City building across the street and the City
Hall.
On behalf of the Board, Chairman Davis expressed appreciation to Mr. Collins and Mr. Parker
for the presentations.
Deputy County Manager Atkinson asked the members of the Board if any additional
information could be prepared before the regular meeting on January 22, 2001. He emphasized the
need to complete the Parking Deck when the Judicial Building Expansion is completed and stated that
bids for the deck should be submitted by March 1, 2001 to comply to the construction schedule.
Chairman Davis, again, reiterated the need to discuss the joint projects with the City Council
on Monday before rendering decisions.
ADJOURNMENT
There being no further comments, Chairman Davis adjourned the meeting at 7:15 P.M.
Respectfully submitted,
Lucie F. Harrell
Clerk to the Board