Submitted By
Rob Sproule, Public Works Director & Shatonya Johnson, Police Chief
Reviewed By
A.M.Z.
Agenda Item Title
Title
A Motion to Select an Option for the Police Station Improvement Project and Direct Staff to Prepare Final Conceptual Design Drawings and Advance to Schematic Design the Village Board’s Selected Option
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Overview
Overview
A 2019 Space Needs Analysis of the Oak Park Police Department identified that the existing facility is significantly undersized and the current design is inadequate to support and substantially limits Police Department operations according to modern standards. The age of the building and infrastructure and significant, deferred maintenance over the nearly 50-year life-span of what was considered a temporary facility for the Police Department when construction of Village Hall was complete in 1975 means that most of the mechanical systems are reaching the end of life with multiple life-safety, accessibility, and building code concerns apparent in the current facility. As directed by the Village Board, staff has been working with FGM Architects, Inc. to evaluate design options for the Police Station Improvement Project and are prepared to present four (4) primary conceptual design options with the intent of getting Village Board direction on a preferred option for further development and advancement to schematic design.
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Recommendation
Recommendation
The Village Board will select one of the conceptual design options for the Police Station Improvement Project for further exploration and development with the intent of moving the selected option to schematic design.
Background
The existing Village of Oak Park Police Station is in the basement of Village Hall, which was originally built in 1975. Originally intended as a temporary site for the Police facility, there are numerous operational, space, safety, security, and system issues. Since the building was constructed, only minor improvements have been made in an attempt to accommodate the Police Department’s operational changes. Staff believes these conditions have contributed to challenges with recruitment and retention. In addition, given the complexity and scale of the issues and 24-hour nature of the facility, repairs and upkeep of the Police Station have not historically kept pace with improvements to the Village’s Fire Stations.
In November 2018, the Village hired FGM Architects, Inc. (FGM) to complete a space needs assessment, with the goal of informing the Village on how to best address Police facility needs for the next 30+ years. On November 25, 2019, FGM presented a report of their findings to the Village Board.
The assessment found the following:
• The space required by the Police Department to effectively operate is 78,112 square feet (s.f.). The existing station is 35,688 s.f.
• Police operations have changed dramatically since the building was constructed in 1975.
• There are many safety and security issues present that affect staff and other users.
o Employee safety risks due to non-ideal prisoner routing through civilian work areas.
o Poor functioning older security doors.
o Lack of ambulance access for prisoners through the sally port, requiring an ambulance to park at the top of the ramp and paramedics must carry or walk prisoners to and from the ambulance and police station cells.
o Hazardous prison cell design that requires constant monitoring for prisoner safety.
• Many of the original spaces in the station are now inadequate and require additional space (sally port, booking room, locker rooms, evidence room at capacity).
o Poor lockers that are not equipped for the equipment used by police officers.
o Poor outdated shower design that go unused.
• There are numerous accessibility issues.
• Building Code issues were observed.
o Leaks in the evidence room.
o Other issues with flooding and mold.
o Flooring with known asbestos underneath that requires special attention for repairs or replacement.
• Mechanical systems are not operating to today’s standards.
o Poor air quality for employees and visitors due to a facility with no windows causing poor ventilation, especially on warmer or rainy days.
• Plumbing and electrical systems are nearing the end of expected life.
• Parking for the operations is insufficient.
• There is no potential for growth.
Four (4) options were evaluated and two (2) options were recommended to address the long-term needs of the Police Department:
• Build a new Public-facing Police Station on the current Village Hall Campus and renovate the Village Hall basement areas occupied by the Police Department for internal police services, training spaces, and other Village services. Estimated cost in 2019: $41.3M to $43.7M
• Build a new Police Station on a yet-to-be-procured property. Estimated cost in 2019: $42.6M to $45M
On February 18, 2020, the Village Board approved a contract with FGM to begin Schematic Design Services based on further direction of the preferred option. Due to the COVID-19 pandemic, the project was put on hold and no final design preference was identified to advance to schematic design.
In April of 2022, Village staff re-engaged FGM to discuss options to advance the project forward. On June 13, 2022, in advance of their full report, BerryDunn, the consultant hired to complete a Community Safety Assessment project for the Village, released a memorandum identifying important emergent issues that arose early in the assessment. The group noted, “numerous challenges with the current police facility that adversely affect efficient and effective operations… The observed deficiencies in these areas work against operational effectiveness and create various liability and safety risks for Police Department and Village staff. Additionally, it is likely that many of these issues are not correctable, given the limitations of the current space.” At that time, staff provided the Village Manager and Village Board an update on the current state of the proposed Police Station Improvement Project. Part of the update provided an overview of the Space Needs Assessment completed by FGM Architects in 2019. Following those conversations with the Village Board, staff was directed to reengage FGM to evaluate additional possible conceptual options and update the costs for the existing options, as the original numbers were generated in late 2019 and construction costs have increased significantly over the last four years.
FGM provided a proposal to update costs and evaluate two (2) additional options for the proposed Police Station Improvement Project, including:
• Redesign and renovate the entire Village Hall facility for Police use and build a new Village Hall facility on the existing Village Hall campus grounds or a separate parcel elsewhere in the Village.
• Renovate the existing basement occupied by the Police Department for continued Police use and build a smaller public-facing Police Station on a new site in the Village.
After reviewing the information and updated costs provided by FGM during this update, it became apparent one more option should be evaluated before a decision on the preferred option for schematic design.
The issues identified during FGM’s analysis related to the Village Hall facility are not exclusive to the spaces currently utilized by the Police Department:
• Accessibility, life safety, and building code concerns exist throughout the facility.
• The age of the building and infrastructure means that most of the mechanical systems are antiquated and reaching the end of life.
• The current facility is undersized for modern local governance.
• The current architecture and design of the building significantly limit the ability to renovate the facility to meet Village Board goals of sustainability, equity, and accessibility.
• Significant renovations to the facility to address building inadequacies will potentially compromise the architecture of the building and come at a premium cost based on the building design and condition.
The Village faces financial obligations in the range of $25 to $35 million to maintain the existing facility. These estimated costs do not address the current space constraints of the existing facility or advance sustainability, equity, or accessibility goals for the facility in any meaningful way.
This final proposed design option is the rebuilding of the current Village Hall campus and design of a new Village Civic Center that meets the current and potential future service needs of the Village including, but potentially not limited to, current Village Hall services and Public Safety for conceivably the next fifty years.
Fiscal Impact
There are sufficient unencumbered funds in the Fiscal Year 2023 Budget allocated for expenses associated with design work for the Police Station Improvement Project within account # 3012-43790-101-540673 (Building Improvement Fund, Building Maintenance).
On February 18, 2020, the Village Board approved an Agreement with FGM Architects, Inc. for Architectural and Engineering Schematic Design Services for the Oak Park Police Department in an Amount Not to Exceed $322,600
DEI Impact
There are several DEI impacts to consider with the development of a new police facility. Internally, a new facility creates a better work environment, and space to ensure maximum efficiency and efficacy to meet public safety needs. Additionally, an updated facility addresses current inequitable conditions for women officers and staff which can help support in the retention of a diverse police department that leads to more equitable outcomes. Externally, marginalized communities may feel a significant investment in a new police facility could impede efforts to rebuild police and community relationships. Overall, a new facility presents a crucial opportunity for the Village of Oak Park to have a police department that is better equipped to respond to the many challenges involving public safety.
Alternatives
Option 1: Build a new Public-facing Police Station on the current Village Hall Campus and renovate the Village Hall basement areas occupied by the Police Department for internal police services, training spaces, and other Village services. ($75.4M - $77.8M)
Advantages
• Addresses Police space needs
• Addresses emergent facility issues identified by BerryDunn
• Does not require property acquisition
• Minimal impact on Village Services during construction
Disadvantages
• Does not fully address Village Hall space needs
• Does not address facility issues on the 1st / 2nd floor of current Village Hall
• Current cost estimate and design does not address parking issues
• Potential impact on green space at the rear of the Village Hall Campus
• Constructs a multi-story building on the existing surface parking lot that creates a visual barrier that does not currently exist between Lombard and Taylor avenues
Option 2: Build a new Police Station on a yet-to-be-procured property. ($66.9M - $69.5M)
Advantages
• Addresses Police space needs
• Addresses emergent facility issues identified by BerryDunn
• Vacated space in the basement of Village Hall would be available for other Village Services (renovation costs not included in scope)
• No impact on Village services during construction
• No impact on green space at the rear of the Village Hall Campus
• Does not create a visual barrier between Lombard and Taylor avenues
Disadvantages
• Does not address facility issues at the current Village Hall
• Requires property acquisition (multiple parcels)
• Current cost estimate and design does not address parking issues
• Actual property acquisition may impact Police Station design and parking opportunities
• May require remote parking for Police Officer vehicles
• Does not directly address Village Hall space needs
• Police services would no longer be located in Village Hall
Option 3: Build a new Police Station on a yet-to-be-procured property and renovate the Village Hall facility to meet the current and potential future service needs of the Village including, but potentially not limited to, current Village Hall services and facility parking needs. ($118.8M - $124.2M)
Advantages
• Addresses Police space needs
• Addresses emergent facility issues identified by BerryDunn
• Addresses Village Hall space needs
• Addresses facility issues at the current Village Hall
• Current cost estimate and design addresses parking issues at Village Hall
• Construction could be staged to minimize the impact to Village services
Disadvantages
• Requires property acquisition (multiple parcels)
• The current architecture and design of the building significantly limit the ability to renovate the facility to meet the Village Board's goals of sustainability, equity, and accessibility
• Significant renovations to the facility to address building inadequacies will potentially compromise the architecture of the building and come at a premium cost based on the building design and condition - renovation costs may be less economical than rebuilding costs
• Actual property acquisition may impact Police Station design and parking opportunities
• May require remote parking for Police Officer vehicles
• Police services would no longer be located in Village Hall
Option 3A: Build a new Police Station on a yet-to-be-procured property and rebuild the Village Hall facility to meet the current and potential future service needs of the Village including, but potentially not limited to, current Village Hall services and facility parking needs. ($122.8M - $132.1M)
Advantages
• Addresses Police space needs
• Addresses emergent facility issues identified by BerryDunn
• Addresses Village Hall space needs
• Addresses facility issues at the current Village Hall
• Current cost estimate and design addresses parking issues at Village Hall
• Construction could be staged to minimize the impact to Village services
• Opportunity to more directly engage Madison St. (commercial space development)
• Best opportunity to address sustainability, ADA, and equity goals.
• Maintains existing greenspace with the potential to increase.
Disadvantages
• Requires property acquisition (multiple parcels)
• Actual property acquisition may impact Police Station design and parking opportunities
• May require remote parking for Police Officer vehicles
• Requires temporary relocation of Village Hall services with related costs and temporary inconveniences
• Police services would no longer be located in Village Hall
• Demolition of current Village Hall Building
Option 4: Rebuild the current Village Hall Campus with a new Village Civic Center that meets the current and potential future service needs of the Village including, but potentially not limited to, current Village Hall services and Public Safety and facility parking needs. ($132.8M - $138.1M)
Advantages
• Addressed Police space needs
• Addresses emergent facility issues identified by BerryDunn
• Addressed Village Hall space needs
• Does not require property acquisition
• Addresses facility parking needs
• Opportunity to more directly engage Madison St. (commercial space development)
• Best opportunity to address sustainability, ADA, and equity goals.
• Maintains existing greenspace with the potential to increase.
Disadvantages
• Requires temporary relocation of Village Hall and Police services with related costs and temporary inconveniences
• Demolition of current Village Hall Building
• Most costly of any scenario despite it possibly being the most cost-effective option
*Costs presented for the options represent an estimated range and are for comparison purposes of similar options. Decisions made during schematic design can impact the project cost.
*Project costs represent traditional construction without full electrification and potentially meet LEED Silver Certification. Additional costs are presented for LEED Gold and Net-Zero options. Both of these options would include full electrification. These costs are in addition to the traditional construction cost base estimates.
*Property procurement costs are not included in off-site options. Actual costs would depend on the size and location of the acquired property.
*Costs associated with addressing parking on the Village Hall Campus were included in Option 3, 3A and 4 with the inclusion of an underground parking structure on the site. The size and location of any parcel procured for the off-site Police Station would determine the ability to accommodate parking at that location. Architectural estimates for structured parking are estimated at $42,000 per parking spot. Estimates could be adjusted to add or remove parking from any of the options based on that estimate.
Previous Board Action
On April 24, 2023, the Village Board approved an amendment to the Professional Services Agreement with FGM Architects, Inc. for additional conceptual design options for the Police Station Improvement Project.
On February 18, 2020, the Village Board approved an Agreement with FGM Architects, Inc. for Architectural and Engineering Schematic Design Services for the Oak Park Police Department in an Amount Not to Exceed $322,600.
On November 19, 2018, the Village Board approved an Agreement with FGM Architects, Inc. for a Space Needs Assessment for the Oak Park Police Department in an Amount Not to Exceed $53,680.
On January 22, 2013, the Village Board approved the Historic Preservation Commission’s 2013 Work Plan allowing the Historic Preservation Commission to pursue listing the Oak Park Village Hall building on the National Register of Historic Places. The application was accepted and the building listed on August 25,2014.
Citizen Advisory Commission Action
N/A.
Anticipated Future Actions/Commitments
Once a preferred design has been advanced to schematic design engineering, Staff will return to the Board to begin discussing options to finance the Police Station Improvement Project.
Intergovernmental Cooperation Opportunities
There may be opportunities to engage municipal partners in discussion regarding potential office space within a future facility depending on the option selected for advancement to schematic design.