Honorable Mayor and Members of the Hermosa Beach City Council Adjourned Regular Meeting of May 4, 2016
Title
CITY FACILITIES STRATEGIC PLAN
(Interim Fire Chief Pete Bonano)
Body
Recommended Action:
Recommendation
Approve the following recommended actions:
1. Approve the closing of City Hall on May 23rd, and approve May 23rd as a paid day off for those employees affected by the scheduled termite fumigation.
2. Review the Hermosa Beach City Facilities Strategic Plan; discuss the options presented in the Plan, and direct staff to return for future discussion as part of the long-term financial plan.
3. Approve the purchasing of the Fire Department dormitory trailers from Pacific Mobile Structures in the amount of $104,857.29.
4. Approve the closing of Bard Street to all vehicular traffic other than City Vehicles. This closing would allow access to both the Friends of the Library and Stars Antique Market for the loading and unloading of merchandise.
Body
Background:
The goal of the Hermosa Beach City Facilities Strategic Plan (to be distributed on May 2, 2016) is to create a basis for discussion for the replacement or upgrade of the existing facilities. The City Facilities Strategic Plan shall guide the City of Hermosa Beach through the development of a strategic plan for the replacement and/or upgrade of the City’s Core Facilities to ensure that these essential facilities serving the City are capable of meeting the needs of the community and the city staff into the future. As a part of creating sustainable governance in the City of Hermosa Beach, the development of a strategic plan will allow the city’s government to remain operational in the event of a major earthquake or other disasters.
RECOMMENDED ACTION #1
Fumigation Analysis:
The Fire Department has a major dry wood termite problem. This is evident from the damage to the wood rafters, fascia, and studs that have been deteriorated from decades of termite activity in the fire house. Additionally there is evidence of infestation in random areas of the adjoined Police Department and City Hall, as well as the Community Services Building (Base 3).
The recommendation from professionals in the field of pest control is to perform a full structural fumigation (tent) of the entire City Hall, Fire Station and Police Station Complex, as well as the Community Services Building. This is based on the locations and severity of infestations, as well as reports that the building has never been treated for termites since being constructed over fifty years ago. This is well beyond spot treatment. The City issued a request for proposals (RFP) for termite fumigation services on March, 28th and received (3) bids on April 14th. Pending Council approval of the closure date, the firm selected to perform this work is tentatively scheduled for fumigating City Hall starting on Friday, May 20, 2016 and completing the process on Monday May 23rd. Due to the fumigation process, City Hall will have to be closed to residents and employees alike on those days. Base 3 will be fumigated on a later date to be determined.
Therefore, staff recommends that Council confirm the closing of City Hall on May 23, 2016 and confirm May 23, 2016 as a paid day off for those employees affected by the fumigation of City Hall.
RECOMMENDED ACTION #2
Facilities Analysis:
The City Council’s Strategic Plan in 2014-15 identified a carbon neutral road map for municipal facilities/operations as a top priority. The City Council adopted the Hermosa Beach Municipal Carbon Neutral Plan in 2015, and simultaneously set an aggressive goal of achieving Carbon Neutrality for municipal facilities/operations by 2020. The Hermosa Beach Municipal Carbon Neutral Plan transparently supports a 2020 Carbon Neutrality commitment with strategies, concrete actions, a detailed work plan and budget, and will position the City as a climate action leader. A key element of meeting the Carbon Neutral Plan is the upgrade or replacement of the existing public facilities serving the citizens of Hermosa Beach so that they can be operated on a Net Zero Energy basis.
The purpose of this study is to provide the City of Hermosa Beach policy makers with development scenarios to begin the discussion on the long term vision for the core facilities serving the City. This planning tool is meant to help prioritize and inform the capital improvement decisions and potential funding alternatives that the City will need to make regarding the future of the identified facilities. The improvement priorities are to focus on:
1. Furthering the Net Zero goals of the City through the replacement and/or improvements of each of the identified facilities, and ensuring that they are seismically, operationally and functionally improved to continue to meet the needs of the City in the future.
2. Address the immediate need of replacing the existing fire station that has been found to be structurally deficient and beyond its useful life.
3. Increasing the operational efficiencies of the Police Department by providing a single, seismically and operationally improved facility from which the department can deliver law enforcement services to the citizens of Hermosa Beach.
4. Increasing operational efficiencies of the Public Works Field Operations by providing replacement facilities, additional parking and storage yard areas at the existing Yard Operations site.
5. Replace or expand City Hall to better accommodate the existing and future staff (scenarios presented at this time due not include growth assumptions).
6. Develop the facilities in a manner that maximizes the use of the funds available through phasing options or changes in operations and also considers revenue generation sources.
The objective of the draft plan is to provide a set of tools for decision making during the establishment of the facilities strategic plan by developing implementation goals through the following key findings:
FIRE DEPARTMENT
The fire station has been found to be structurally and operationally deficient such that it will most likely not be in operation in the event of a major earthquake and is not in compliance with California Health and Safety Code requirements as an essential facility. Replacement of this fire station represents the most pressing need for the continued protection of the City in the event of a disaster. California Health and Safety Code states that essential services buildings shall be capable of providing essential services to the public after a disaster, and shall be designed and constructed to minimize fire hazards and to resist, insofar as practical, the forces generated by earthquakes, gravity, and winds. “Essential services building” means any building, including buildings designed and constructed, for public agencies used, or designed to be used, or any building a portion of which is used or designed to be used, as a fire station, police station, emergency operations center, California Highway Patrol office, sheriff’s office, or emergency communication dispatch center.
Over the last six months, staff has met several times to determine the best direction moving forward with the renovations of City facilities. During these meetings, staff developed five different options based of the priorities of 1) Safety, 2) Costs, 3) “Hassle Factor” and 4) Timing. Several options were developed with discussion on the pros and cons of each option. One glaring outcome of these discussions was that, due to the known structural deficiencies of the current fire station, it is not possible to repopulate the firefighters back into the station. Because of this staff is recommending that the City purchase the dormitory trailers that currently house the firefighters. Since Administrative staff is not considered as “essential”, we will continue with the fire station administrative office renovations.
POLICE STATION
The existing police station was not built to the heightened structural criteria required for an essential facility. In addition, this facility was initially built in the 1960’s, then renovated in 2000 and does not support modern policing practices. There have been major changes in the operational requirements of a Police Department which the current facility does not efficiently support. Some of the many changes include the needs for specific areas for evidence processing and storage, increased record keeping storage, increases in the amount and types of protection equipment, increased staffing, specific legal requirements for holding and processing areas and the increased numbers of female police officers. The relocation of the Police Department to a new facility is one of the key elements to be considered in the City’s strategic planning for facilities.
CITY HALL
The existing City Hall was built in the 1960’s and then renovated in 2000. Of the existing facilities studied, this building could serve the City for another 50 years if renovated and expanded to meeting current staffing and service levels. The availability of a site for staff and public parking is one of the biggest challenges in expanding City Hall in its current location.
PUBLIC WORKS YARD
Per the CivilSource Condition Assessment Survey completed in June 29, 2015, the Public Works yard facility is comprised of various operational areas and several buildings. The most urgent upgrade item identified is the installation of a storm water system and wash-down area with clarifiers which is required by the State Water Quality Board. The City Yard main building (modular building) was installed circa 1976 and is in fair condition. The City Yard shop building was constructed in the early part of the last century is seismically unsafe and has passed its expected useful life. The condition assessment report recommends that over $2M be allocated for maintenance and repairs over the next 10 years. This work would maintain the status quo, and does not address code and operational upgrades that are necessary to provide a modern and safer work environment for the public works staff. While not immediately impacting the safety and protection of the citizens of Hermosa Beach, the replacement of this facility on the existing site is included as a part of the long term vision for facility planning.
POTENTIAL PRINCIPLES TO GUIDE POLICY DISCUSSION
1) All future facility developments shall be done in the larger context of moving the city facilities toward Zero Net Energy consumption to meet the 2020 goal of a carbon neutral footprint within the City.
2) All seismic safety and key operational efficiency issues must be addressed.
3) The plan should improve as many facilities as possible -- spread funds around so that the city can make improvements to all locations rather than just a few.
4) Set a budget range of $x to $y and refine the scope of each project as they are developed to find savings if possible.
5) Set a project delivery schedule that allows the projects to be funded as revenues are developed.
6) Utilize city owned property if possible to maximize funds for facilities.
Scenario Development
A total of five scenarios were developed for the working group to review. Each is an evolution that explores the different approaches to replacement and or renovation. Some may require changing operational strategies like relocating the fire administrative staff from the fire station to the City Hall if the City were to decide on a neighborhood fire station versus a headquarters fire station. The scenarios tested a variety of ways to meet the Guiding Principles and in the end helped to shape the Principles themselves. The recommended development scenario is described below and a summary of the key point of each project follows.
Scenario Descriptions
There are a total of six projects discussed for either the replacement or renovation of existing facilities with a sixth new project being a parking garage that would be revenue generating. The library is noted to be either replaced on site or relocated to the Community Center site. An order of magnitude budget for the library is being developed as a separate feasibility study and is not included in this report.
The budgets reflected for each scenario are known as an “Order of Magnitude Cost Model (OOM).” An order of magnitude cost model has the objective of identifying costs within an order of magnitude. The budget is not meant to be the lowest possible, rather, to identify the order of Magnitude of costs in considering next steps. The OOM budget is used for long range planning purposes and high level discussions on policy. The cost models do not include potential revenue from a public parking structure. The attributes of each scenario has been developed for discussion below.
Scenario 1
§ Replace Library at existing site.
§ Create a neighborhood Fire Station to remain on Pier Avenue.
§ Close Bard Street. Create new Parking Structure.
§ Replace City Hall (include space for Fire Administration)
§ Build a modern Police Building at the adjacent storage site with basement parking.
§ Replace the City Yard facilities at existing site including the development of subterranean parking.
Rationale
This scenario allows the most urgent facility issue, the replacement of the fire station, to occur without severely effecting other city departments. The Fire Department Administration staff would need to remain in trailers until the City Hall is expanded to accommodate that portion of the department. This scenario allows facility development to be phased as funds are available and provides for the generation of revenue through the parking structure.
Order of Magnitude Budget Range
§ $125M - $135M
Scenario 2
§ Relocate Library to Community Center Site
§ Replace Fire Station as a Headquarters Fire Station at Pier Ave.
§ Build a modern Police Building at the adjacent storage site with basement parking.
§ Renovate and Expand City Hall.
§ Replace the City Yard facilities at existing site including the development of subterranean parking.
Rationale
This scenario requires that the police station be constructed first so that the replacement fire station can be built in a portion of the existing police station building that would be torn down. It also requires that the library be relocated prior to the construction of the replacement fire station. The Police Department and Fire Department would be housed in temporary facilities during construction. Renovate and expansion of the City Hall and replacement of the City Yard facilities could occur as funds become available. This scenario requires the most upfront funding of the development scenarios and does not result in additional parking revenues.
Order of Magnitude Budget Range
§ $110M - $120M
Scenario 3
§ Relocate Library to Community Center Site
§ Build a modern Public Safety Center at the adjacent storage site with basement parking.
§ Replace City Hall and locate it on Pier Ave.
§ Develop a new Parking Structure.
§ Replace the City Yard facilities at existing site including the development of subterranean parking.
Rationale
This scenario requires that the Joint Police and Fire Station (Public Safety Center, PSC) be constructed first so that the relocated City Hall can be built on the existing library and fire station sites. It delays the relocation requirement of the library until the funds are available for a New City Hall. The Police Department and Fire Department could operate from their existing facilities during construction. Relocation and replacement of the City Hall and replacement of the City Yard facilities could occur as funds become available. The parking structure could only be built once the PSC and New City Hall are complete.
Order of Magnitude Budget Range
§ $120M - $135M
Scenario 4
§ Relocate Library to Community Center Site
§ Build a modern Public Safety Center at the adjacent storage site with basement parking.
§ Replace City Hall at its existing location.
§ Replace the City Yard facilities at existing site including the development of subterranean parking at the Community Center.
§ Sell Pier Ave frontage.
Rationale
This scenario requires that the Joint Police and Fire Station (Public Safety Center) be constructed first so that the replacement City Hall can be built on the existing police station portion of the building. A portion of the funding for the new Public Safety Center and the New City Hall can be secured through the sale of two properties on Pier Ave.
Order of Magnitude Budget Range (Revenue from property sale not included)
$110M - $120M
Scenario 5
§ Relocate Library to Community Center Site
§ Build a modern Public Safety Center at the adjacent storage site with basement parking.
§ Relocate the City Hall functions to a leased or purchased existing office building on PCH.
§ Replace the City Yard facilities at existing site including the development of subterranean parking.
§ Sell Pier Ave and Valley Drive corner property.
Rationale
This scenario requires that the Joint Police and Fire Station (Public Safety Center) be constructed first so that the existing City Hall can be demolished in preparation for the sale of the property. This is only feasible if property is available for lease which can accommodate the city hall functions. A portion of the funding for the new Public Safety Center and the New City Hall can be secured through the sale of the properties on Pier Ave.
Order of Magnitude Budget Range
§ $90M - $100M
IMPLEMENTATION SCHEDULE AND POLICY SETTING
The schedule for implementation is a key element in the Strategic Plan. Guiding Principles No.1 and 4 both relate directly to the proposed timeline. There are many policy topics that will guide the refinement of a selected development scenario or the creation of new scenarios. There are many policy topics which will affect the next steps of the facility discussion including:
Policy Topics:
§ Short and Long Term Fire Operations
§ Private Development on the proposed property for sale
§ Building Parking Structures for Staff and Public
§ Net Zero Vs. CA Title 24 (the next version of LEED Gold will be Net Zero)
§ Moving or re-build Library in place
§ Community Engagement Approach
§ Phasing - 10 year plan….
§ Funding strategies tie into long term financial plan
This report is intended to be illustrative of the type and magnitude of facility replacements and/or upgrades that are and will be facing the City in the years to come. With the immediate need of a new fire station as the starting place, the creation of a sustainable Hermosa Beach begins with the development of a long range plan to set the path for moving forward.
RECOMMENDED ACTION #3
As stated earlier, the fire station has been found to be structurally and operationally deficient such that it will most likely not be in operation in the event of a major earthquake and is not in compliance with California Health and Safety Code requirements as an essential facility. Replacement of this fire station represents the most pressing need for the continue protection of the City in the event of a disaster. Due to the known structural deficiencies of the fire station, staff is recommending that the City proceed with the purchasing of the Fire Department dormitory trailers from Pacific Mobile Structures in the amount of $104,857.29.
RECOMMENDED ACTION #4
Closing of Bard Street Analysis:
As a result of the removal of the fire tower, installation of the temporary fire quarters resulted in the need to park fire apparatus on Bard Street; the already crowded parking situation on Bard has now become a safety concern. Lack of space and the need to address police and fire safety concerns (quick response to emergency incidents) required the Fire Department to park apparatus on Bard, blocking a portion of the south bound lane. The impact of a blocked lane on a small street is magnified and becomes an additional safety concern when fire personnel are responding to or coming back from an emergency call. There have been several occasions where motorists on Bard have almost struck safety personnel who were attempting to quickly respond to an emergency call for service. Because of the issues, fire and police are experiencing difficulty leaving the area in a quick and safe manner.
Fiscal Implications:
Attachment #1 identifies the very rough cost estimates for scenarios 1 through 5. Council may want to consider whether they want to do a peer review of these very preliminary figures.
Current funds are available from the Capital Improvement Fund for CIP 14-632 Fire Department Tower Demolition project (in the amount of $473,702) for the purchase of the Fire Department dormitory trailers.
Attachments:
1. Cost analysis for each scenario
2. Site Plan for each scenario
3. CivilSource Comprehensive Citywide Building and Facilities Condition Assessment
4. Citywide Facilities Assessment Spreadsheet
5. Pacific Mobile Structures Sales Agreement
Respectfully Submitted by: Pete Bonano, Interim Fire Chief
Concur: Andrew Brozyna, Public Works Director
Noted for Fiscal Impact: Viki Copeland, Finance Director
Approved: Tom Bakaly, City Manager