Part 2 Facility Development for the FLOYD COUNTY JUSTICE CENTER Charles City, Iowa November 10, 2017 Prepared by P R O C H A S K A & A S S O C I A T E S Planning Architecture Engineering Interiors Facility Management 11317 Chicago Circle Omaha, NE 68154-2633 Telephone: 402.334.0755 Fax: 402.334.0868 REPRODUCTION - THIS DOCUMENT AND THE INFORMATION CONTAINED HEREIN MAY NOT BE REPRODUCED OR EXCERPTED FROM WITHOUT THE EXPRESS WRITTEN PERMISSION OF PROCHASKA & ASSOCIATES. UNAUTHORUZED COPYING, DISCLOSURE OR CONSTRUCTION USE ARE PROHIBITED BY COPYRIGHT LAW. COPYRIGHT 2017 PROCHASKA & ASSOCIATES, INC.
Table of Contents EXECUTIVE SUMMARY... 1.0 Objectives... 1.1 Planning Options... 1.2 Recommendation... 1.3 Cost Summary... 1.3 Implementation... 1.3 PROGRAMMING SUMMARY... 2.0 Jail Functions... 2.1 Law Enforcement Office Functions... 2.3 Communications/Dispatch Functions... 2.4 Emergency Management Functions... 2.4 Magistrate Court Functions... 2.4 Summary... 2.5 EXISTING SITE & FLOOR PLANS... 3.0 Existing Site Plan... 3.1 Existing Law Enforcement Center & Jail Floor Plan... 3.2 PLANNING OPTIONS... 4.0 Summary of Options... 4.1 Introduction... 4.2 Option 1 Single Story 32 Bed FCJC Addition & Courthouse Renovations... 4.3 Option 2 Three Story 32 Bed FCJC Addition & Courthouse Renovations... 4.5 Option 3 Hold & Transport & Courthouse Renovations... 4.7 Option 4 Two Story 32 Bed FCJC Addition & Courthouse Renovations... 4.9 Option 1: Illustrations... 4.11 Option 2: Illustrations... 4.13 Option 3: Illustrations... 4.15 Option 4: Illustrations... 4.17 RECOMMENDED OPTION 1... 5.0 Site Plan... 5.1 Floor Plans... 5.2 COST PROJECTIONS... 6.0 Preliminary Concept Plan Budget Summary... 6.1 Option 1 Budget... 6.3 Option 2 Budget... 6.5 Option 3 Budget... 6.7 Option 4 Budget... 6.10 Prochaska & Associates TOC
Executive Summary 1.0
Executive Summary Beginning with our selection by the Floyd County Board of Supervisors in April 2017 and following months of planning sessions with a select Floyd County Citizens Jail Committee, Prochaska & Associates has completed a comprehensive planning effort to develop a solution for the long-standing problems facing the existing Floyd County Jail facility. This planning effort is summarized in this Part 2 Facility Development document, and follows the Part 1 Needs Assessment completed by Prochaska & Associates in April 2017. In developing concepts that are intended to meet the long term needs of a county facility, we must rely upon input from those who know it, use it, and who are ultimately responsible for operating it. Prochaska & Associates is grateful to the Floyd County Board of Supervisors, the Sheriff and law enforcement staff, and especially the Citizens Committee for their dedication, input and help during these assessment and preliminary planning phases. In addition to the Part 1 Needs Assessment, this Facility Development effort follows two previous facility studies for Floyd County and Charles City in 2015 by FEH Design. Most importantly, there have been repeated concerns and compliance issues noted in inspections by the Iowa Department of Corrections (IDOC) regarding the 19-bed (14 permanent, 5 temporary) jail facility, located on the fourth floor of the County Courthouse. Lastly, numerous functional, operational and code deficiencies have accumulated over the decades in the rest of the Courthouse, which was dedicated in 1941, including the County Magistrate Court and Emergency Management Agency (EMA) Office. For these and other critical issues, the Floyd County Supervisors selected Prochaska & Associates and appointed a Citizens Committee to develop a solution to the Law Enforcement Center s and Courthouse s problems which would be satisfactory to the IDOC and code enforcement agencies. The County currently chooses to transport and board over-capacity and high-risk/serious offenders in outof-county Jails because of an inability to hold them in the antiquated Jail, at a continual drain to the County s budget. These issues would be resolved, and staff safety greatly improved, in a modern Jail facility, but are very difficult to address because of the Jail s location within the Courthouse. We are pleased to present this Part 2 Facility Development document for the proposed new Floyd County Justice Center (FCJC) and Courthouse upgrade, which translates the needs of the Jail, Sheriff s Office, Emergency Management and Magistrate Court into graphic form, analyzes multiple options, and develops associated project budgets. It is the intent of this planning effort that a cost effective, efficient and justifiable solution can be presented successfully to the voters of Floyd County on behalf of the Citizens Committee and Board of Supervisors. OBJECTIVES The primary objective of this document is to assist the Citizens Committee, and ultimately the Floyd County Board of Supervisors, in making the decisions needed to resolve the non-compliant and undersized Floyd County Jail and Sheriff s Office dilemma. A quality, code-compliant FCJC facility will increase the efficiency of staff, save the County money spent on out-of-county transportation and housing, and can markedly improve staff, prisoner and public safety by reducing risk and liability. A secondary objective is to assist in resolving the many issues plaguing the Courthouse itself, including a secure, non- public way to escort jail detainees to Courtrooms. To accomplish these objectives, this planning effort: Prochaska & Associates 1.1
Executive Summary Collects and reviews data from all previous facility Programming and Planning work to determine current and anticipated spatial requirements and adjacencies; Reviews the results of the Part 1 Needs Assessment study to finalize the most appropriate bed count for the proposed jail; Evaluates multiple options for the FCJC and Courthouse; Evaluates a secure detainee escort link to the existing Courtrooms; Creates a facility layout that is compatible with surrounding development; Provides estimates for probable construction costs and overall project costs for all feasible options evaluated. PLANNING OPTIONS The Floyd County Board of Supervisors is determined to resolve the County s aging, undersized and noncompliant Jail and Law Enforcement facility and address the numerous Courthouse issues as well. With that goal in mind, Prochaska & Associates evaluated four options, and multiple variations of these options, for renovation of the Courthouse and replacement of the Jail and Sheriff s Office. The successful option must solve code and IDOC compliance problems as well as address space and functional shortcomings of the Jail, Sheriff s Office, County Magistrate Court and Emergency Management. The options reviewed are as follows: Option 1 Single Story 32-Bed FCJC Addition & Courthouse Renovations evaluates construction of a new one-story 32-bed FCJC west of the Courthouse on acquired property and vacated South Jackson Street, and renovation of portions of the existing 1941 Floyd County Courthouse, including various code-compliance and energy efficiency upgrades. Option 2 Three Story 32-Bed FCJC Addition & Courthouse Renovations evaluates construction of a new three-story 32-bed FCJC on Courthouse property west of the Courthouse, and renovation of portions of the existing 1941 Floyd County Courthouse, including various code-compliance and energy efficiency upgrades. Option 3 Hold & Transport & Courthouse Renovations evaluates the concept of closing the current Floyd County Jail. The former Jail and Sheriff s Office would be renovated into a new IDOC-compliant Holding Facility. All Floyd County detainees would be held briefly, transported to, and boarded at, out-of-county jails, then transported back and forth as necessary to the Floyd County Courthouse for arraignment, trial, etc. Various code-compliance and energy efficiency upgrades to the rest of the Courthouse are included. Option 4 New Two-Story 32-Bed FCJC Addition & Courthouse Renovation evaluates construction of a new two-story 32-bed FCJC west of the Courthouse on acquired property and 1.2 Floyd County Justice Center
Executive Summary vacated South Jackson Street, and renovation of portions of the existing 1941 Floyd County Courthouse, including various code-compliance and energy efficiency upgrades. Further discussion of the pros and cons of all four Options is included in Section 4.0 Planning Options later in this document. RECOMMENDATION Following a series of review meetings where details for each Option were presented and discussed, the Citizens Committee selected Option 1 as the option which provides Floyd County with the best long term solution, and the most financially feasible option, for developing a viable, IDOC-compliant Jail. It is the intent of the Committee to recommend Option 1 to the Floyd County Board of Supervisors, who must then decide whether or not to place the proposed project in a referendum to County voters. COST SUMMARY An estimated construction budget for the recommended Option 1 is summarized as follows. The budget for Option 1 is based on the Concept Plan drawings included in Section 4.0 of this document. A general cost breakdown for Option 1, as well as for all other Options, is included in Section 6.0 Cost Projections. OPTION 1: SINGLE STORY 32 BED FCJC ADDITION & COURTHOUSE RENOVATIONS Construction Budget (Hard Costs)... $ 11,327,520 Project Overhead Budget (Soft Costs)... $ 2,038,950 Total Project Budget...$ 13,366,470 Based on inflation turmoil over the years since the 2008 recession, projecting costs to the 2019 bid market is more art than science. In these times, predicting with certainty what the construction economy will be like over a year from now is challenging. Construction costs can always be greatly affected by weather, labor or material shortages, demand and capacity of the construction marketplace, the difficulty of the proposed work and a multitude of other factors. The above budget includes design phase as well as construction phase contingency costs to help protect the County from this volatility. IMPLEMENTATION The Option 1 Concept Plan and Project Budget provide the County and Citizens Committee with a viable, cost effective and code-compliant solution to the prisoner housing responsibility and law enforcement needs of Floyd County. It also provides resolution of County Magistrate Court and Emergency Management Office concerns, and addresses long-standing functional, operational and code-compliance issues in the rest of the 1940 s era Courthouse. This recommended Concept Plan has evolved through several months of thoughtful planning sessions with the Citizens Committee. This summary document is intended to assist Floyd County and the Committee in responsible decision-making relative to the recommended Option, and to successfully communicate the critical need and justification for this long-overdue Justice Center project to Floyd County voters. Prochaska & Associates 1.3
Programming Summary 2.0
Programming Summary FACILITY PROGRAM A. Programming Summary The following Program defines the spaces and proposed sizes necessary for a 32-Bed Jail, plus County Sheriff s Department Offices, Communications/Dispatch Center, Emergency Management Agency (EMA) space and Magistrate Court. In addition, the Jail must comply with Chapter 201-50 of the Iowa Administrative Code as regulated and administered by the Iowa Department of Corrections. This Program is revised from the Program developed in the Phase 1 Needs Assessment, by eliminating the spaces formerly listed for the Charles City Police Department, which chose not to remain part of a joint Law Enforcement facility. The preliminary concept floor plan square footages and overall facility size will vary from these target sizes as they are developed, and are heavily influenced by the shape and topography of the actual sites proposed for the facility. Space Description Proposed SF JAIL FUNCTIONS Intake: Vehicular Sallyport 1,100 Secure Vestibule/Report Writing/Restraint Chair Storage 170 Secure Vestibule Holding Cell 110 Booking/Booking Storage 250 Fingerprint Area/Intoxilyzer Room 250 Staff Toilet 50 Holding Cells Multi-holding Cells (2) 160 Isolation Cell (1) 60 Contact Visitation/Interview Room/Video Arraignment 100 Clothing Change-out/Shower/Toilet 160 Property Storage 180 Laundry (including Jail Issue Storage) 350 General Storage/Jail Storage 240 Food Service Kitchen (full service) 470 Delivery Vestibule 80 Janitor Closet 20 Commissary Storage 50 Secure Vestibule 70 Medical Exam/Toilet 80 Janitor Closet 20 Program Services: Library/Multi-Purpose (includes Storage Closet) 400 Exercise (enclosed: 15 SF/inmate using at once; 500 SF min) 520 Exercise Storage 30 Jail Administrator s Office 120 Prochaska & Associates 2.1
Programming Summary Master Control (also possibly Dispatch?) Master Control Area 230 After Hours Area/Bond Window 80 Master Control Equipment 150 Toilet 50 Secure Vestibule 50 Control Station 150 Jail Housing Units (32 Beds) Work Release Dorm Space Multiple Occupancy (4 beds) 280 Dorm Space Multiple Occupancy (4 beds) 280 Minimum Security 3 Cells Dual Occupancy (6 beds) 294 Day Room 210 Medium Security (Male) 3 Cells - Dual Occupancy (6 beds) 294 Day Room 210 Medium Security (Female sight/sound separation) 3 Cells - Dual Occupancy (6 beds) 294 Day Room 210 Maximum Security (M/F swing) 2 Cells - Single Occupancy (2 beds) 154 Day Room 100 Administrative Segregation (M/F swing) 2 Cells (1 H.C.) - Single Occupancy (2 beds) 154 Day Room 100 Special Needs (M/F swing) 2 Cells (2 H.C.) - Single Occupancy (2 beds) 228 Day Room 100 Jail Subtotal (Net SF) 8,658 Miscellaneous (walls, utility chases, circulation @ 35%) 3,030 Jail Subtotal (Gross SF) 11,688 The preceding portion of the program represents the space necessary for a 32-bed jail which meets the requirements of the Iowa Department of Corrections for a modern jail. The Iowa Jail Standards focus on improving conditions and operations in local jails to lessen the potential for successful litigation against local officials. This program includes 24 inmate beds plus 8 dorm beds in classifications which are gender flexible in order to accommodate fluctuations in jail population. Each category of bed segregation (minimum, medium, etc.) are separated by sight and sound, meaning that the listed male beds could hold females if necessary. Additionally, the security classification labels provided do not signify exclusive uses. For example, a maximum security cell can hold a minimum security prisoner if necessary, but a minimum security cell cannot hold a maximum security prisoner. This arrangement allows the jailor to hold a wide variety of prisoners securely, which is impossible with the current facility. Also, a minimum of 2% of cells must be accessible as required by the Americans with Disabilities Act. 2.2 Floyd County Justice Center
Programming Summary Space Description Proposed SF LAW ENFORCEMENT OFFICE FUNCTIONS Public Spaces: Main Entrance Vestibule 80 Entrance Lobby 300 Public Toilets (2 @ 60 SF ea.) 120 Video Visitation (6 stations) 125 Administrative Spaces: Reception/Administration (2 workstations) 160 Copy/Work Room/Mail Room 150 File/Records Storage 200 Server Room 150 Sheriff s Department Offices: Sheriff s Office 200 Chief Deputy's Office 120 Deputy Squad Room (10 workstations 3 shifts; desk/file storage ea.) 700 Investigation 120 Support spaces: Interview Rooms (2 @ 90 SF ea.; soundproofing) 180 Interview Room (soundproofing) 90 Interview Toilet (unisex) 50 A/V & Case Prep Room (2 computer stations + editing equipment) 100 Evidence Evidence Processing (pass-thru lockers) 120 Storage/Technician 400 Large Evidence Storage 450 Fitness Room 250 Armory (w/ gun/ammo storage/gun repair/cleaning bench) 200 Staff Toilets (2 @ 60 SF ea.) 120 Break Room (kitchenette/vending/2 4-top tables) 250 Male Locker Room (22 full height lockers, toilet, shower) 325 Female Locker Room (22 full height lockers, toilet, shower) 325 Conference/Training (40 people @ tables, storm shelter; shared w. EM) 1,080 Chair/Table Storage 150 A/V Equipment 40 General Storage 300 Janitor Closet 20 Law Enforcement Offices Subtotal (Net SF) 6,875 Miscellaneous (walls, utility chases, circulation @ 35%) 2,406 Law Enforcement Offices Subtotal (Gross SF) 9,281 The Law Enforcement Office Program above represents modern office space to meet the Sheriff s Office s current and foreseeable future needs. Prochaska & Associates 2.3
Programming Summary Space Description Proposed SF COMMUNICATIONS/DISPATCH FUNCTIONS Dispatch Area (3 workstations) 350 Dispatch Supervisor s Office 120 Radio Equipment/Computer Server 150 Break Room (kitchenette/1 4-top table) 150 Toilet 50 Communications/Dispatch Subtotal (Net SF) 820 Miscellaneous (walls, circulation @ 35%) 287 Communications/Dispatch Subtotal (Gross SF) 1,107 The preceding Program for Communications/Dispatch space is included in Phase 2 planning, pending negotiations between Floyd County and Charles City, where the current Dispatch Center is located. If a decision is reached to keep Dispatch at the City Police Department, the space will be removed from the Justice Center plan during a later phase of design planning (assuming the project secures bond referendum financing). Space Description Proposed SF EMERGENCY MANAGEMENT AGENCY FUNCTIONS EOC Operations Room (*see Conference/Training in Law Enforcement Office Program) * EMA Director s Office 120 Call Center Space (10 phone stations; 2 ft. deep shelving one wall) 180 Equipment Room/Storage (*included in Call Center Space) * Toilet (*see Public Toilets in Law Enforcement Office Program) * Emergency Management Subtotal (Net SF) 300 Miscellaneous (walls, circulation @ 35%) 105 Emergency Management Subtotal (Gross SF) 405 Space Description Proposed SF MAGISTRATE COURT FUNCTIONS Magistrate Court 500 Judges Chamber 200 Toilet 50 Magistrate Court Subtotal (Net SF) 750 Miscellaneous (walls, circulation @ 35%) 263 Magistrate Court Subtotal (Gross SF) 1,013 The preceding Programs for Emergency Management and Magistrate Court include some spaces that will remain in the Courthouse in renovated space. 2.4 Floyd County Justice Center
Programming Summary B. Summary FLOYD COUNTY PROGRAM SUMMARY JAIL FUNCTIONS Jail Subtotal (Net SF) (32 Beds) 8,658 Miscellaneous (walls, utility chases, circulation) 3,030 Jail Subtotal (Gross SF) 11,688 LAW ENFORCEMENT OFFICE FUNCTIONS Law Enforcement Offices Subtotal (Net SF) 6,875 Miscellaneous (walls, utility chases, circulation) 2,406 Law Enforcement Offices Subtotal (Gross SF) 9,281 COMMUNICATIONS/DISPATCH FUNCTIONS Communications/Dispatch Subtotal (Net SF) 820 Miscellaneous (walls, circulation) 287 Communications/Dispatch Subtotal (Gross SF) 1,107 EMERGENCY MANAGEMENT FUNCTIONS Emergency Management Subtotal (Net SF) 300 Miscellaneous (walls, circulation) 105 Emergency Management Subtotal (Gross SF) 405 MAGISTRATE COURT FUNCTIONS Magistrate Court Subtotal (Net SF) 750 Miscellaneous (walls, circulation) 263 Magistrate Court Subtotal (Gross SF) 1,013 BUILDING SUPPORT Mechanical/Electrical Equipment 1,500 Electrical Room 150 Building Support Subtotal 1,650 TOTAL PROJECT (gross square footage) 25,144 Note that the above Program, which was derived from the original Program developed in Phase 1, does not include space for the Courthouse Link. This Link space evolved during the Phase 2 planning process to include spaces added by request of the Citizens Committee, such as ADA accessible public toilets serving each floor of the Courthouse and associated access stairs and landings. Prochaska & Associates 2.5
Existing Site & Floor Plans 3.0
Planning Options 4.0
Planning Options SUMMARY OF OPTIONS The Floyd County Board of Supervisors requested an evaluation of several options to determine the feasibility of replacing the existing Floyd County Jail and Sheriff s Offices, currently located on the fourth floor of the Courthouse, to meet Iowa Department of Corrections (IDOC) requirements. In addition to a code and IDOC-compliant Jail, these options would include the relocation of the current Sheriff s Office. Other Floyd County departments to be included in the evaluation of these options are the Magistrate Court and the Emergency Management Agency (EMA) Office. Lastly, the Board requested that the options also address functional, operational and code deficiencies that have accumulated in the Courthouse itself since its dedication in 1941. For the purposes of this Phase 2 Facility Development effort, the facility will be referred to as the Floyd County Justice Center (FCJC). The options reviewed are as follows: OPTION 1: SINGLE STORY 32-BED FCJC ADDITION & COURTHOUSE RENOVATIONS This option evaluates construction of a new single story 32-bed Jail and Sheriff s Office addition linked to the west side of the Courthouse, plus renovation of portions of the existing Courthouse. Option 1 requires closure of the adjacent segment of South Jackson Street and acquisition of two additional properties west of South Jackson Street. OPTION 2: THREE STORY 32-BED FCJC ADDITION & COURTHOUSE RENOVATIONS This option evaluates construction of a new three story 32-bed Jail and Sheriff s Office addition linked to the west side of the Courthouse, plus renovation of portions of the existing Courthouse. Because it is multi-story, Option 1 does not require closure of the adjacent segment of South Jackson Street nor the acquisition of the two additional properties to the west. OPTION 3: HOLD & TRANSPORT & COURTHOUSE RENOVATIONS This option evaluates the concept of closing the current Floyd County Jail. A new IDOC-compliant Holding Facility would be renovated within the current Jail space on the fourth floor of the Courthouse. The existing Sheriff s Office space would be renovated to improve functionality and for compliance with current building codes. All Floyd County detainees would be held briefly, transported to, and boarded at, out-of-county jails, and transported back and forth as necessary to the Floyd County Courthouse for arraignment, trial, etc. Once the jail is closed, this process and the associated costs will be the responsibility of Floyd County taxpayers perennially, without the benefit of bond funds, or until a new jail is built. OPTION 4: TWO STORY 32-BED FCJC ADDITION & COURTHOUSE RENOVATIONS This option is similar to Options 1 and 2 except it evaluates a two story 32-bed Jail and Sheriff s Office addition to the west side of the Courthouse. Because the footprint of this addition is larger than Option 2, it requires closure of South Jackson Street and acquisition of the two additional properties as in Option 1. Prochaska & Associates 4.1
Planning Options INTRODUCTION OVERVIEW The modern jail is more complex than any of its predecessors, especially those built thirty years ago or more. This is due primarily to new types of inmate classification and improved methods of inmate separation that have been developed over the last twenty five years. New methods of surveillance have also affected the layout of the modern floor plan, often rendering older facilities inefficient or obsolete. The modern jail consists of a number of housing units arranged around a central control station, allowing direct visual surveillance of the inmate population. Each inmate is classified and placed into one of the following housing units: Male/Female Minimum Security, Male/Female Medium Security, Male/Female Maximum Security, Administrative Separation, and Special Needs. Minimum Security can be further broken down to include Trustee and Work Release housing (typically dorm type spaces). New standards regarding classification and separation of inmates are designed to reduce the liability incurred by counties operating jails. HISTORY The existing Floyd County Jail and Sheriff s Office was built 76 years ago on the fourth floor of the Courthouse, as part of the Courthouse project constructed in 1941. The functional and physical deficiencies of the existing facility are well-documented in the Phase 1 Needs Assessment completed on April 13, 2017. This Needs Assessment forecasted a need for 32 beds in 20 years, with a potential need for 39 beds within 30 years. While the operation of the jail by the Sheriff s staff is in compliance with IDOC standards, the annual IDOC inspection of the Floyd County Jail results in numerous facility deficiencies. IDOC has indicated it may require closure of the Jail if the County does not proceed with a plan for resolving these non-compliance issues, in order to reduce liability concerns for public, staff and inmate safety. The deficiencies associated with the Magistrate Court and Emergency Management Agency spaces, currently located in the Courthouse, are also documented in the Phase 1 Needs Assessment, as are additional building code, accessibility and building systems deficiencies affecting the Courthouse building. THE OPTIONS This Facility Development planning phase is comprised of four Options, which have been analyzed on the following pages, providing the information necessary to enable Floyd County to select the one FCJC Option that best meets the law enforcement needs and obligations of the County. Option 1 Single Story 32-Bed FCJC Addition & Courthouse Renovations Option 2 Three Story 32-Bed FCJC Addition & Courthouse Renovations Option 3 Hold & Transport & Courthouse Renovations Option 4 Two Story 32 Bed-FCJC Addition & Courthouse Renovations 4.2 Floyd County Justice Center
Planning Options OPTION 1 SINGLE STORY 32-BED FCJC ADDITION & COURTHOUSE RENOVATIONS OVERVIEW This Option investigates the feasibility of constructing a modern, IDOC compliant 32-bed Jail and Sheriff s Office addition to the Floyd County Courthouse. Option 1 also addresses issues with the Magistrate Court and the Emergency Management Agency (EMA) Office. Lastly, Option 1 explores ways to resolve functional, operational and code deficiencies that have accumulated in the Courthouse itself since its dedication in 1941. The Option 1 Site and Floor Plan illustrations (pages 4.11 and 4.12) show the new addition constructed west of the Courthouse, crossing South Jackson Street (to be vacated) and extending onto the acquired properties west of South Jackson. The new Jail includes one 32-bed inmate Housing pod with a central Control Station, intake Booking and Holding space, 2-bay Sallyport, Kitchen, and other IDOC required spaces such as Master Control, Exercise, Multi-Purpose/Library, Laundry and other jail support spaces. The Sheriff s Department, conveniently located adjacent to the Jail, will house the Sheriff s Office, Deputy Office and Squad Room, Evidence Storage, Locker Rooms and support spaces. Multi-Purpose Training space will serve the Sheriff s Office as well as Emergency Management, which will use it as an Emergency Operations Center (EOC) when necessary. Option 1 shows Dispatch co-located with the new Jail Master Control. Dispatch is currently located in the Charles City Police Department, although the County pays for staffing of Dispatch. Because the old Jail does not have Master Control, the new facility will require additional staffing for Master Control, as noted in the Phase 1 Needs Assessment. If Dispatch is relocated to the new Jail Master Control, current Dispatch staff could relocate and operate both Master Control and Dispatch. If it is determined by County and City negotiations that Dispatch will remain at the City, the space allotted to Master Control/Dispatch will be reduced in size during the future design phase of the project, once the project is financed. Even though the site will be enlarged by the acquisition of South Jackson Street and the west properties, the single story footprint of the new FCJC leaves modest space for additional off-street parking. It also limits the new vehicular Sallyport to a pull-in/back out garage for securely loading and unloading detainees. The addition is located outside the boundary of the 100-year FEMA flood plain. Some future expansion of the FCJC, if ever needed, is available on the west. A major expansion would require the acquisition of additional property to the west. A key feature of Option 1 is the development of a secure link between the new Jail and the Courtrooms in the Courthouse, with an elevator for secure escort of detainees to and from the Jail without crossing paths with the public. The EMA Office and Call Center remain in renovated space on the 1 st Floor of the Courthouse. Magistrate Court remains on the 4 th Floor. New ADA accessible Public Restrooms have been developed to serve each floor. Other Courthouse deficiencies and energy efficiency upgrades will be addressed in Option 1. It must be noted that any significant updates to the existing Courthouse building will likely require the facility to be upgraded to meet the requirements of the NFPA 101 Life Safety Code (LSC), the International Building Code (IBC), and the Americans with Disabilities Act (ADA). Prochaska & Associates 4.3
Planning Options PROS CONS Link to Courthouse creates single campus Floyd County Justice Center Single story addition retains focus on historic five-story Courthouse Ample green space on north to maximize appearance of new FCJC entrance Secure loading/unloading of detainees in enclosed Vehicular Sallyport Secure escort of detainees to/from Courtrooms in Courthouse Single story Jail and Sheriff s Office maximizes staff efficiency No need for stairs or elevator within Jail or Sheriff s Office Vacated Sheriff s Office and Jail on 4 th Floor can be re-purposed Magistrate and District Courts remain in Courthouse Courthouse space re-purposed for Emergency Management Office Multi-Purpose Training Room (Sheriff s Office/EMA) publicly accessible off Lobby as EOC EMA access to Training Room is convenient for EOC use Lowest cost of all Options Addition aligns with existing courthouse s north and south faces Requires closure of South Jackson Street Requires relocation of South Jackson Street utilities Requires acquisition of two additional parcels west of South Jackson Street Single story footprint reduces site area available for on-site parking Only 15 off-street parking spaces Curb parking along Court Street will require City approval May need to acquire additional property if major future growth necessary RECOMMENDATION Although the Option 1 single story site footprint is larger than the multi-story plans developed for Options 2 and 4, the Floyd County Sheriff s Office believes that the greater efficiencies and potential reduction in costs of staffing and operating a one story Jail and Sheriff s Office, over the typical 30 year useful life of the new FCJC facility, outweigh the additional site space realized by the multi-story options. Following a series of review meetings where details for each Option were presented and discussed, it is the intent of the Citizens Committee to recommend Option 1 to the Floyd County Board of Supervisors as the option which provides Floyd County with the best long term solution, and the most financially feasible option, for developing a viable, IDOC-compliant Jail in Floyd County and best resolves the numerous deficiencies in the Courthouse. COSTS A Project Budget for Option 1 is summarized in Section 6 Cost Projections. 4.4 Floyd County Justice Center
Planning Options OPTION 2 THREE STORY 32-BED FCJC ADDITION & COURTHOUSE RENOVATIONS OVERVIEW In an effort to reduce the footprint size of the new FCJC addition and eliminate the need to vacate South Jackson Street, Option 2 evaluates the feasibility of constructing a three story IDOC compliant 32-bed Jail and Sheriff s Office addition to the Floyd County Courthouse. As with Option 1, Option 2 also addresses issues with the Magistrate Court and the Emergency Management Agency (EMA) Office. Lastly, Option 2 also studies ways to resolve the deficiencies that have accumulated in the 1941 Courthouse. The Option 2 Site and Floor Plan illustrations (pages 4.13 and 4.14) show the new three story addition constructed west of the Courthouse. Unlike Option 1, South Jackson remains open and the only acquired property used is the lot at the northwest corner of South Jackson and Gilbert Streets, which the County has previously purchased. The new addition houses the same spaces as Option 1, except they are stacked on three levels. The Ground Floor houses some Jail spaces, such as the Vehicular Sallyport, inmate and delivery elevator and Master Control, and some Sheriff s Office functions such as Reception, Interview Rooms and Evidence Storage and miscellaneous support spaces. The 2 nd Floor houses the Jail Kitchen and Contact Visitation Rooms. The remainder of the 2 nd Floor contains Sheriff s and Deputies Office space, a Training/Multi-Purpose/EOC room, EMA Office and Call Center and Mechanical/Electrical space for the facility. The 3 rd Floor is dedicated to the remainder of the Jail functions, including the 32-bed Housing unit with Control Station, Booking and Holding, Laundry, Exercise and Jail support spaces. As with Option 1, Option 2 is planned for Dispatch to be co-located with the new Jail Master Control. If Dispatch remains at the Charles City Police Department, the space allotted to Master Control/Dispatch will be reduced in size. Additional curb parking is created along Court Street on the north. The County-owned property on the corner west of the Courthouse is developed into Staff parking. As with Option 1, the new vehicular Sallyport is limited to a pull-in/back out garage for securely loading and unloading detainees. The addition is located outside the boundary of the 100-year FEMA flood plain. Future expansion of the FCJC, if ever needed, would require the closure of South Jackson Street and the acquisition of additional property to the west. Option 2 is linked to the Courthouse with a multi-story Lobby, which also provides for secure escort of detainees to and from the Jail without crossing paths with the public. The Magistrate Court remains on the 4 th Floor. New ADA accessible Public Restrooms have been developed to serve each floor. As with Option 1, other Courthouse deficiencies and energy efficiency upgrades will be addressed in Option 2, which will likely require the facility to be upgraded to meet current code requirements and regulations. PROS Link to Courthouse creates single campus Floyd County Justice Center Three-story facility minimizes site footprint Prochaska & Associates 4.5
Planning Options CONS Ample green space on north to maximize appearance of new FCJC entrance No need to close South Jackson Street Minimal need to relocate utilities, other than fiber-optic Not necessary to acquire additional parcels west of South Jackson Street Secure escort of detainees to/from Courtrooms in Courthouse Magistrate and District Courts remain in Courthouse Vacated Sheriff s Office and Jail on 4 th Floor can be re-purposed Multi-story addition creates inefficiency for staff when Jail and Offices split between floors Multi-story addition obstructs most of west façade of historic five-story Courthouse Requires stairs and elevator (detainees) within Jail and Sheriff s Office Curb parking along Court Street will require City approval Facility encroaches 30 into west buffer yard requiring City waiver Facility constructed to west property line requires backing into street from Sallyport 2 nd Floor Multi-Purpose Training Room not publicly assessable EMA office publicly accessible without passing through sheriff s office RECOMMENDATION While Option 2 is feasible and does not require closure of South Jackson Street or additional property acquisition, its biggest drawback is functional. Stacking the floors vertically reduces the footprint, but splits the Jail between a few Jail spaces (Sallyport, Master Control) on the Ground Floor and the majority of the rest of the Jail spaces on the 3 rd Floor. Likewise, the Sheriff s Office spaces are divided between the Ground and 2 nd Floors. In a smaller facility such as the FCJC, which has much fewer staff than large urban law enforcement buildings, staff efficiency is compromised when traveling between floors numerous times per day. Over the useful life of the building, this built-in inefficiency will result in less staff productivity and potentially higher staffing costs. Lastly, the Sheriff s Department dislikes the 3 rd Floor location of the Jail. The Sheriff s Office has lived with the challenges of the current Jail on the 4 th Floor for over 75 years. Option 2 is not recommended by the Citizens Committee for any further development. COSTS A Project Budget for Option 2 is summarized in Section 6 Cost Projections. 4.6 Floyd County Justice Center
Planning Options OPTION 3: HOLD & TRANSPORT & COURTHOUSE RENOVATIONS OVERVIEW While citing concerns with the existing jail s age and capacity as part of the their annual jail inspection, the Iowa Department of Corrections (IDOC) has allowed Floyd County to continue to operate the existing grandfathered jail as-is. To remain grandfathered, IDOC s directive to the County is that it must continue to transport and board over-capacity, or non-classifiable and difficult detainees, to out-of-county jails. Option 3 (illustrations on pages 4.15 and 4.16) studies the concept of closing the Floyd County jail and transporting and housing all inmates to out-of-county jails in the region. For those counties without a jail, the Iowa Department of Corrections requires the county to have a compliant Temporary Holding facility for their detainees. This Option creates a Temporary Holding facility that houses detainees until they can be transported to a jail in a neighboring county. Detainees can be held a maximum of 24 hours in this type of facility before they must be transported. For those detainees who are not released within 24 hours, the County is required to transport and board them out-of-county, as is currently done in other counties that have closed their jails. A new IDOC-compliant Holding Facility would be renovated within the current Jail space on the fourth floor of the Courthouse. The existing Sheriff s Office space would be renovated to improve functionality and for compliance with current building codes. All Floyd County detainees would be held briefly, transported to, and boarded at, out-of-county jails, and transported back and forth as necessary to the Floyd County Courthouse for arraignment, trial, etc. The County remains responsible for paying boarding costs, medical expenses, and transportation costs, including transporting inmates back and forth to the Courthouse when needed. Once the Jail is closed, the County (and ultimately the taxpayers) will be obligated to pay these transportation, housing, and medical costs indefinitely or until a new compliant jail is built. Floyd County currently transports these out-of-county inmates at an average cost of $65 per day, which is likely to increase, due to inflation or demand, at the whim of the boarding county over time. The destination jails and boarding costs are subject to the number of available jail beds in the boarding county. Often, the boarding county will refuse to board certain difficult or high-security prisoners. Another unfortunate result of transporting inmates is that the law enforcement staff who transport the detainees essentially become chauffeurs and will spend much of their time hauling prisoners back and forth in all types of weather, which takes away from their regular law enforcement duties and increases their risk of a traffic accident. These trips also include transporting inmates back to Floyd County for court appearances. In order to maintain current County law enforcement capability, Option 3 may require that Floyd County hire more law enforcement staff to cover these additional transport duties. PROS Lowest initial cost of all Options No need to close South Jackson Street Prochaska & Associates 4.7
Planning Options CONS No need to relocate utilities Not necessary to acquire additional parcels west of South Jackson Street Most expensive project over 20 year bond life (or until Jail is built) Must transport inmates back and forth to courthouse No secure Sallyport for loading/unloading detainees Law enforcement staff become chauffers for inmate transport Transportation and boarding costs never end Boarding costs will likely increase in future years Will out-of-county beds always be available? Will difficult inmates be accepted by other county jails? Must renovate existing Jail space into IDOC compliant holding facility Requires ADA accessible inmate elevator to be built on north side of Courthouse Must renovate existing Sheriff s Office for code-compliance and ADA access Taxpayers are paying for other counties jails Does not replace non-compliant courthouse toilets RECOMMENDATION Option 3 should be viewed as a last resort by Floyd County. This Option does not solve any of the issues inherent with the existing jail and relies on other counties asking fair compensation for holding Floyd County inmates. In the long term, the County should expect increasing costs for housing and transporting a growing number of inmates to out-of-county facilities. Option 3 does not resolve any of the functional issues affecting the Magistrate Court or Emergency Management Agency spaces, nor does it provide ADA-compliant public toilets in the Courthouse. Option 3 is not recommended by the Citizens Committee for any further development. COSTS The estimated costs for the continued transporting and housing of excess or non-classifiable Floyd County prisoners to out-of-county jails are included in Section 6 Cost Projections. Cost estimates for proposed energy efficiency improvements and some building code upgrades to the Courthouse are included, but no costs are included for renovations or upgrades to Courthouse public toilets, Magistrate Court or EMA spaces. In summary, it must again be noted that these transport and housing costs do not end at 20 years (the typical length of bond payments), but they will continue perpetually, or until Floyd County builds a new jail facility. Finally, these Option 3 costs must be paid for by Floyd County taxpayers out of annual tax receipts, without the benefit of a bond issue. 4.8 Floyd County Justice Center
Planning Options OPTION 4 TWO STORY 32-BED FCJC ADDITION & COURTHOUSE RENOVATIONS OVERVIEW The Option 4 Site and Floor Plan illustrations (pages 4.17 and 4.18) show the new two story addition constructed west of the Courthouse. As a two story facility, Option 4 is a blend of Option 1 (single story) and Option 2 (three stories). It responds to the Sheriff s Department s concern with the location of the Jail on the 3 rd Floor of Option 2. With Option 4, all Jail functions are located on the Ground Floor, while Sheriff s Office spaces occupy a partial 2 nd Floor. In Option 4, Magistrate Court remains on the 4 th Floor of the Courthouse. The Emergency Management Agency Office is located in renovated space of the Courthouse, in the southwest corner of the 1 st Floor, conveniently linked to the new Training/Multi-Purpose Room on the 2 nd Floor Sheriff s Office, so it may be used as an Emergency Operations Center (EOC) when needed. As with Options 1 and 2, Option 4 is planned for Dispatch to be co-located with the new Jail Master Control. If Dispatch remains at the Charles City Police Department, the space allotted to Master Control/Dispatch will be reduced in size. Option 4 creates additional curb parking along Court Street on the north. Like Option 1, South Jackson Street must be vacated and the two additional properties to the west must be acquired. Option 4 takes advantage of the reduced footprint of the two story addition and creates a large off-street parking area to the west spanning between Court and Gilbert Streets. As with the other options, the new vehicular Sallyport is limited to a pull-in/back out garage for securely loading and unloading detainees. The addition is located outside the boundary of the 100-year FEMA flood plain. Future expansion of the FCJC, if ever needed, would occur in the new parking area along the west. Option 4 is linked to the Courthouse with a two story Lobby, which provides for escort of detainees to a secure inmate elevator for access to the District and Magistrate courts on the 3 rd and 4 th Floors. New ADA accessible Public Restrooms have been developed to serve each floor. As with the other options, Courthouse deficiencies and energy efficiency upgrades will be addressed in Option 4, which will likely require the facility to be upgraded to meet current code requirements and regulations. PROS Link to Courthouse creates single campus Floyd County Justice Center Two-story facility reduces site footprint over single story Option 1 Additional off-street parking can be created to west Secure escort of detainees to/from Courtrooms in Courthouse Magistrate and District Courts remain in Courthouse Vacated Sheriff s Office and Jail on 4 th Floor can be re-purposed EMA Office located within courthouse EMA access to Training Room is convenient for EOC use Prochaska & Associates 4.9
Planning Options CONS Requires closure of South Jackson Street Requires relocation of South Jackson Street utilities Requires acquisition of two additional parcels west of South Jackson Street Curb parking along Court Street will require City approval May need to acquire additional property if major future growth necessary Addition of new toilets covers north elevation of courthouse Handicap access to Training Room requires use of elevator & passing through sheriff s offices Creates larger addition and more renovated space, thus increases cost RECOMMENDATION Option 4 is an improvement over the three story Option 2 because it locates the Jail on the Ground Floor. While it accomplishes the overall goals of the project and allows more on-site parking, it is the preference of the Sheriff s Department and the Citizens Committee that the single story Option 1 FCJC will be more efficient to staff and operate over the life of the facility compared to the two level Option 4. Option 4 is not recommended by the Citizens Committee for any further development. COSTS A Project Budget for Option 4 is summarized in Section 6 Cost Projections. 4.10 Floyd County Justice Center
Recommended Option 1 5.0
Cost Projections 6.0
Cost Projections The Project Budget includes the estimated Construction Budget (Hard Costs) plus the estimated Project Overhead Budget (Soft Costs). Soft Costs are typically estimated as a percentage of the Construction Budget in the early planning stages of a Project, until more definitive costs have been estimated by the Owner and consultants. Some of the listed items may prove to be not applicable. Soft Costs may include, but are not limited to, miscellaneous budget costs such as: P P P P P P P P P P P P P P P Fiscal Agent/Bond Underwriter fees & Bond insurance, etc. Site Investigation for new construction (soil borings & geotechnical report) A/E Design & Contract Administration fees (Schematic Design, Design Development, Construction Documents, Bidding & Negotiation, Construction Administration) Construction phase testing & IBC (International Building Code) Special Inspections Reimbursable (out-of-pocket) consultant expenses (misc. printing, phone, postage, travel, etc.) Construction Document printing (plans & specifications for bidding and construction) Construction Manager Advisor (CMa) fees (if applicable) State Agency review fees (Fire Marshal, ADA, etc.) Furnishings (furniture, window coverings, etc.) Fixtures/Equipment (high-density mobile shelving, evidence storage shelving, laundry, kitchen, etc.) Data/Communications equipment (phones/computers/cabling, etc.) Hazardous Materials Assessment & Abatement (Courthouse, if applicable) EPA erosion control inspections ( Stormwater Prevention Pollution Plan (SWPPP) if applicable) Builder s Risk/All Risk insurance Construction phase Contingency budget PRELIMINARY CONCEPT PLAN BUDGET SUMMARY OPTION 1: SINGLE STORY 32 BED FCJC ADDITION & COURTHOUSE RENOVATIONS Construction Budget (Hard Costs)... $ 10,768,410 Project Overhead Budget (Soft Costs)... $ 1,938,310 Total Project Budget...$ 12,706,720 OPTION 2: THREE STORY 32 BED FCJC ADDITION & COURTHOUSE RENOVATIONS Construction Budget (Hard Costs)... $ 10,888,190 Project Overhead Budget (Soft Costs)... $ 1,959,870 Total Project Budget...$ 12,848,060 OPTION 3: HOLD & TRANSPORT & COURTHOUSE RENOVATIONS Project Budget Total (Hard & Soft Costs)... $ 3,025,190 Out-of-County Transport & Housing Cost (total cost over 20 years)... $ 12,140,171* Total Project Budget (20 year NPV in 2019 dollars)... $ 15,165,361* *(Transport & Housing costs will continue into perpetuity or until a new jail is constructed, and are forecast to continue growing exponentially. For example, the present value of 30 years of these Transport & Housing costs is equal to $20,208,422 vs. $12,140,171 for 20 years. A 20-year present value amount is used above to compare with a typical construction bond.) Prochaska & Associates 6.1
Cost Projections OPTION 4: TWO STORY 32 BED FCJC ADDITION & COURTHOUSE RENOVATIONS Construction Budget (Hard Costs)... $ 12,121,650 Project Overhead Budget (Soft Costs)... $ 2,181,900 Total Project Budget...$ 14,303,550 6.2 Floyd County Justice Center
Cost Projections Estimated construction costs are summarized below. Due to the nature of a Preliminary Design, costs are based on historical square foot costs, plus lump sum costs and allowances for special items. Costs are budgeted for the January 2019 Construction Bid Market. OPTION 1: SINGLE STORY 32 BED FCJC ADDITION & COURTHOUSE RENOVATIONS Project Budget Projection: New Construction: Ground Floor Jail Facility (32 beds, some double occupancy cells)... $ 3,660,910 11,191 GSF at $327.13/SF Ground Floor Law Enforcement Offices... $ 1,319,520 8,403 GSF at $157.03/SF Vehicular Sallyport/Large Evidence Vehicle Storage Garage... $ 397,840 3,140 GSF at $126.70/SF Entrance/Lobby Link/Elevators/Video Visitation/Interview/Public Toilets... $ 1,020,700 8,056 GSF at $126.70/SF Mechanical/Electrical Equipment Rooftop Penthouse... $ 133,450 1,559 GSF at $85.60/SF Sitework Allowance... $ 416,570 (Site Demolition/Grading/Drives/Sidewalks/Parking/Utilities Relocation, etc.) Existing Buildings Demolition Allowance (West of South Jackson Street)... $ 75,200 Renovation: Courthouse Energy Upgrades (based on costs updated from 2008 Technical Energy Analysis) Replace Existing Courthouse Windows (compliant w/ Historic Register)... $ 274,450 Install New Water Source Heat Pump System... $ 945,690 Renovation of vacated Courthouse spaces Ground Floor (Veterans Office)... $ 40,260 767 GSF at $52.49/SF Ground Floor (EMA Office/Call Center/Link)... $ 53,030 540 GSF at $98.20/SF Prochaska & Associates 6.3