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HomeMy WebLinkAboutINS-20-011 - City Hall Outdoor Spaces Construction UpdateREPORT TO: Community and Infrastructure Services Committee DATE OF MEETING: September 28, 2020 SUBMITTED BY: Asad Qureshi, Director Facilities Management 519-741-2600 X 4424 PREPARED BY: Lynda Stewart, Manager of Projects & Energy Management 519-741-2600 X 4215 WARD (S) INVOLVED: All Wards DATE OF REPORT:September 21, 2020 REPORT NO.: INS-20-011 SUBJECT: City Hall Outdoor Spaces Construction Update ___________________________________________________________________________ RECOMMENDATION: That the City Hall Outdoor Spaces scope adjustments for Necessary Repairs, Comprehensive Renewal, and Accelerated Schedule, as identified in Infrastructure Services Department report INS-20-11 be approved and addedto the scope of work for Heritage Restoration Inc. (T19-177); and That the City Hall Outdoor Spaces capital project budget be increased by the following amounts: $900,000 for Necessary Repairs $1,150,000 for Comprehensive Renewal $150,000 for Accelerated Schedule; and further That the funding sources for the additional budget be allocated as follows: $815,000 Facilities Management capital project closeouts $1,385,000 Tax Capital reserve fund. BACKGROUND: Kitchener City Hall was opened in 1992 and after nearly 25years of extensive usefor community events and public recreation, the outdoor areas were showing signs of damage and the rink and fountain amenitieswere reaching end of life. To address this and the functionality of the space a thorough review and planning exercise was undertaken. In September 2016, Council received the City Hall Outdoor Spaces Master Plan,(INS-16-066) which outlined the existing conditions and how the areas could potentially be redesigned to be more flexible for programming; provide better access to the spaces and replace necessary infrastructure that had reached end of life. *** This information is available in accessible formats upon request. *** Please call 519-741-2345 or TTY 1-866-969-9994for assistance. 4 - 1 Infrastructureconcernsidentified in the master planincluded: Cracks and leaking of salt and water into the ceiling of the parking garage.The engineering report identified that the waterproofing membrane must be replaced to rectify this situation. Accessibility issues associated with the physical design of site features, including the stage, fountain, stairs, ramps and damage to the paving surface. Poor condition ofdrainage infrastructure, particularly the trench drains, withmost of the drains through the garage roof slab found to beactively leaking, anindication that the membrane bond has failed. End of expected lifecycle for both the ice rink and fountain equipment. The resolution passed by Council recognized critical infrastructure (surface concrete, parking garage membrane and drainage) as the first priorityfor reconstruction; that the refurbishment or replacement of the ice rink, fountain and stage should be considered concurrently with critical infrastructure replacements; and, that other elements would be considered subject to funding availability. Further work to explore the feasibility of constructing the master plan design was completed in 2017 (INS 17-076 City Hall Outdoor Spaces Functional Design) and detailed design work began in 2018. In 2019, further work to refine the design continued and a structural engineer specializing in restoration projects was added to the team. A 100% detailed design submission was tendered, closing on December 10, 2019 (T19-177). Two bids were received for this tender, both exceeding the project budget. Report INS-20-005 analyzed the variance between the budgetand bids andoffered project scope and cost reduction suggestions for Council’s consideration. At the time of tender award, market conditions, the specified cold-applied dual membrane waterproofing system and extensive mechanical and electrical workwere identified as the primary cost drivers. Additional accessibility upgrades, such as handrails and tactile walking surface indicators, also contributed to increased costs. In total, the project budget was reduced by $1.71 million. Provisional items, including the pedestrian rampfrom College St., stairs and upper terrace and site furnishings were removed from scope. The project contingency was reduced from 10% to 5%overall. 4 - 2 REPORT: Heritage Restoration Inc. (HRI)was awarded the tender with reduced scope and began work onMarch 23, 2020,later losing 20 calendardays to COVID restrictions.This project is an extensive undertaking, requiring the removal of all surface paving, insulation and granular fill to access the parking garage membrane. The limits of the parking garageextend beyond the building footprint, making work on all four sides of City Hall necessary. The project is divided into two phases, the first one focused on Carl Zehr Square and the College Street sides of the building. To date, HRI has completed surface removals like flagpoles, bike racks and benches for reuse; decommissioned electrical, ice plant and water feature systems; demolished the hardscape paving and rink slab; and removed granular fill, insulation and the waterproofing membrane. Concrete repairs, concrete penetrations for mechanical systems; and surface preparation has been another area of focus for the contractor. On College Street, paving, planters and streetscape lighting has been removed, and cladding has been removed on all sides of the building. As demolition progressed, a number of unanticipated issues were identified requiring further investigation and strategies to address the concerns. The issues are a result ofextensive deterioration of the building componentsand unanticipated conditions associated with original construction, drainageand utility infrastructure. Documented conditions are further described below,and photos are provided in Appendix A. Documented Conditions The project team, which includes structural restoration engineers, building and landscape architects and the restoration contractor, have documented several interrelated issues that have contributed to the deterioration of building and site components. The issues experienced include: Theexisting waterproofing was in very poor condition and was compromised at several locations. The waterproofing systems between the podium deck and the building cladding and fenestration components was not continuous. This allowed water, shed from the building, to bypass the podium waterproofing and prevented proper drainage of the cladding elements. In some areas, water was trapped between the membrane and building or podium surfaces. This resulted in extensive damage including the corrosion of curtain wall closures,granite cladding and anchors, door thresholds and frames, and water damage to some interior areas.Salt used for winter ice and snow control exacerbated these conditions. Moisture trapped between the membrane and surface was especially apparent at the pedestrian ramp. Once the vertical cladding was removed, water began seeping out from beneath the membrane at the cold joint between the surface and the wall and 4 - 3 continued for several days. Test cuts at various locations along the ramp found the membrane debonded and the concrete topping to bedisintegrated, evidence of long-term water saturation. Understandably, the construction materials and methods used when City Hall was built 28 years ago would not necessarily be the same as those utilized today. However, some of the methods revealed by demolition are not consistent with as-built drawings and work is required to rectify these areas. For example, the green slate wall adjacent to the Williams patio was expected to be a solid concretebase but was found to be hollow block construction with large unsealed openings for lighting fixtures. Furthermore, the height of the wall was not as specified in the original drawings and the gap had been filled with insulation and topped with cement board to hold the cladding. Once the overburden was removed, HRI conducted a site elevation survey which showed drainage towards the building in some areas. For proper drainage and functioning of the water feature, the elevation will need to be corrected with additional granular fill over a large area and the relocation of some trench drains and water feature piping. Excavation also revealed a previously unknown portion of an old building foundation near King and Gaukel Streets, so the footings for the sign wall will need to be redesigned to account for this. Similarly, locates identified a small telecommunications conduit along College St., but after excavation it was found to be a significant concrete encased bunker at a much shallower depth than shown.Footings for the planters will need to be reworked in light of this. These conditions were not previously known because the areas of concern were concealed by the overburden, waterproofing and cladding elements. Localized test pits were investigated in fall of 2018 to check the overburden and waterproofing tie-in conditionsat the surface. Unfortunately, the issues uncovered occurred higher up, on the foundation wall, at the transition of the curtain wall to the cladding and the top of the green wall and were not revealed until excavation and demolition work began. In addition, there was not active leaking into the building, nor extensive leaking into the parking garage, as would have been expected given the observed condition of the membrane and concealed steel elements after excavation. Test cuts in summer 2020 revealedthe membrane was not well bonded and water was trapped within the system, limiting the observable leakage, but contributing to the deterioration of the building elements. During the investigation phase, damage to the planters, door frames and other areas was not observed. Some damage to the granite panels was noted and an allowance for repair included in the tender. However,significantly more panels were found to be damaged which can be explained bythe concept of exponential deterioration.This refers to rapid deterioration once a portion of the material is damaged. In this case, the cladding was exposed to moisture on both 4 - 4 sides of the panel, as well as chloride from de-icing efforts. Once the pores of the granite are opened up, further damage from freeze-thaw cycles, moisture and salt rapidly occurs. Table 1: Summary of Documented Conditions Scope ItemDescriptionof ConditionsPhoto Reference in Appendix Curtain Wall Framing&Corroded components; Photos 1,2,3,4 Flashingwaterproofing not continuous Door and Components Corroded frames & Photos 5,6,7 thresholds Granite RepairsCladding damaged by salt Photos8,9,10 and water Green Slate WallNot constructed as designedPhotos 11, 12 College St. Corrosion on curb and Photos 13,14 flashing of exhaust shaft Pedestrian Ramp Water trapped between Photos 15,16,17 membrane & surface Stairs Water, salt and freeze/thaw Photos 18,19,20,21 damage Upper TerracePoor drainage & damage to Photos 22,23,24 door King & Gaukel FoundationUndocumented concrete Photo 25 structure, possibly old building foundation College St. Utility BunkerInaccurate locates for size Photo 26 and depth of structure Site ElevationsCorrect drainage with N/A additional fill & relocate trench drains The issues which have been identified will need to be addressedin order for the CHOS project to proceed and several factors should be considered: Effective waterproofing requires a suitable bonding surface so repairs to flashings, cladding and fasteners, and vertical and horizontal surfaces is necessary. When provisional areas (ramp, stairs and upper terrace) were removed from scope at tender award, it was noted that replacement of the membrane in those areas would be required within a short timeframe, meaning a second disruption to Carl Zehr Square. Based on existing conditions, this work will be required sooner than originally anticipated(estimated within 3-5 years)requiring additional disruption to Carl Zehr Square and increased cost due to remobilization costsand inflationary increases 4 - 5 Good asset management practices for facilities place prime importance on the building envelope being watertight. Much of the additional work identified is fundamental to this. The extensive work necessary will impact the critical path and overall project timelines. Options for Consideration Two possible approaches to address the concerns have been proposed by the project team based on the documented conditions of Phase 1 work. It is difficult to project exactly the required work during Phase 2, but it is a reasonable assumption that conditions will be similar to those encountered in Phase 1. As a proxy, an estimate for Phase 2 (Duke and Young St.) based on the relative size of Phase 2 compared to Phase 1 was calculated. Option 1:Necessary Repairswould repair or mitigate areas of greatest concern impacting the original scope of work.The goalswould be to complete the work to a high-qualitystandard; andprevent deficiencies in originalconditionareas from impacting newly constructed waterproofing membrane and concrete repairs. Necessary repairsinclude: Curtain wall framing and flashing repairs Doors, frames and threshold repairsor replacement, as necessary Repairsor replacement ofthe granite claddingon the building and site features Repairs to the garage exhaust shaft on College St. Reinforcing and repairing the green slate wall Comparable repairs to building and site components in Phase 2 as found in Phase 1 In addition to the above, repairs are necessary to address active leaksand deterioration of structural elements that are not in the current scope of work. This relatesprimarily to leakage and drainage issues at the upper terrace doors and at the east stairs,suspected of impacting the anchoring ofgranite cladding panels on the stairs to the upper terrace. This would include: Repairs to the most damaged areas of the pedestrian ramp and joint sealing Repairs to the most damaged areas of the staircase to upper terrace and joint sealing Review of the concealed granite anchors and localized temporary support for soffit panels, if required Localized repairs to the area drain, localized re-grading, and anew door on the upper terrace The additional budget required for necessary repairs is $900,000. Option 2:Comprehensive Renewalwould address all areas, including those previously removed from scope, within consecutive construction seasons. In this option, the ramp and stairs would be completely rebuilt. Work to remove all cladding, repair all areas, address drainage issues, replace the waterproofing and reset the granite surface and claddingwould be done.The upper terrace would be fully re-waterproofed and 4 - 6 compartmentalized to separate the waterproofing system from any leaks stemming from the cladding or curtain wall above. Comprehensive renewal would include all of the necessary repairs: Curtain wall framing and flashing repairs Doors, frames and threshold repairs Repairs or replacement of the granite cladding on the building and site features Repairs to the garage exhaust shaft on College St. Reinforcing and repairing green slate wall Comparable repairs to building and site components in Phase 2 as found in Phase 1 Items previously removed from the project scope wouldbefully addressed, including: Renewal of the pedestrian ramp and full integration with the podium level waterproofing system Renewal of the stairs to the terrace, including waterproofing, new stainless-steel cladding anchors, new drainage Upper Terrace Renewal, including the new upperterrace doors, trench drain, expansion joint and all paving The additional incremental budget required for comprehensive renewals is $1,150,000. Impact on Construction Schedule The extent of work in either the necessary repairs or comprehensive renewal options is significant and will impact the construction schedule. To understand this better, it is helpful to review the evolution of the project schedule. In 2018, during the planning for this project, the preliminary schedule indicated two full construction seasons would be required to complete Phase 1, ending in Fall 2021. Feedback indicated thatCarl Zehr Square being unavailable for two summer seasons was not desirable. So, the Phase 1 schedule for tender was compressed until the end of June 2021. This is a very aggressive schedule that could only have been achieved if no changes were necessary, and certainly only if the COVID pandemic had not occurred. Necessary Repairs Schedule The necessary repair optionscheduleisstill very aggressive and indicates Phase 1 work could be completed by August 2021. Two factors can positively impact this completion date. One is if mild, dry weather conditions allow for work to continue until late this fall. However, this project is very weather dependent and moisture and temperature both impact concrete quality. Secondly, if additional work is undertaken this winter, the end date for Phase 1 could be sooner. This is discussed further in the section below. 4 - 7 Depending on the progress of Phase 1, work could start on Phase 2 in spring 2021and be completed by the end of October 2021. The disadvantage of this is that both the King St. and Duke St. entrances would be underconstruction at the same time for approximately a six- monthperiod. Comprehensive Renewal Schedule Under the comprehensive renewal option, the end of Phase 1 is projected to be the end of October 2021. This schedule is realistic and necessary given the significant building related work included in this option. Undertaking the comprehensive work is consistent with best practices for asset management and provides the best opportunity to maximize efficiencies and productivity. Accelerating the schedule withwinter work is also possible within this schedule. Recognizing the importance of Carl Zehr Square to the community, the contractor has committed to working collaboratively with staff and stakeholders to accommodate limited access to the square, if it is safe to do so, by late summer 2021. Phase 2 is proposed to start in Spring 2022 under the comprehensive renewal option. This is deliberate so that all resources can be focused on Phase 1, with particular emphasis on completing Carl Zehr Square. This would also avoid both Duke and King entrances from being under construction at the same time. Opportunities to Accelerate Completion of Carl Zehr Square It is recognized that Carl Zehr Square provides an important event/community space and contributes to the vibrancy of the downtown. The construction schedule could be accelerated by undertaking work during the winter period of December 2020 to March 2021. Specific areas would be enclosed and heated to allow for continuing work on labour intensive concrete details. Natural gas from the existing service on the square would be the heat source. Working in this 12-week period could accelerate the schedule by up to 8weeks and allow surface works to beginmore immediately in the spring. The first priority for winter work would be the seat walls at the rink area and stage areabecause this work is in the main square, it would have the greatest impact on the timing of Carl Zehr Square availability. This applies if either the necessary repairs or comprehensive renewal option is selected. Winter work on the stairs to the upper terrace could occur to accelerate construction. This would onlyapply if the comprehensive renewal option is undertaken. The advantage of this would be the ability to provide a protected pedestrian access to the front doors of city hall when completed. This would be beneficial if work is being done concurrently on King and Duke St. sides. 4 - 8 Enclosing the pedestrian ramp area for winter work is also part of the comprehensive scope of work. The additional cost for winter works is estimated at $150,000. Recommended Options and Rationale While the necessary repairs are required to complete the originally tendered scope of work, the comprehensive renewal work is integral to the overall effectiveness of the waterproofing application. Completing the comprehensive work now ensures all building and site components are consistently addressed and waterproofing is continuous. From a construction and project management perspective, it is strongly recommended to undertake the necessary repairs and comprehensive renewal for several reasons: The extent of the deterioration makes it difficult to delineate the limit of repairsand unrepaired areas may compromise the effectiveness and longevity of the new waterproofing. It is more efficient to complete work now while cladding and surface paving are removed and a consistent tie-in to the membrane can be achieved. If only necessary repairs are done, a full renewal on excluded areaswill be required in the near future(approximately 3-5 years) based on the severity of deterioration observed. Future construction costs will be higher due to cost escalation and project management and mobilization costs.Based on the volatility in the construction/restoration market in the last 5 years, itis anticipated construction inflation will be in the order of 5-8% annually. Costsrelated to mobilization, new building permit, re-tendering, andproject management would also be incurred. The inherent risk in completing future construction over newly finished surfaces is that there will be some damage to the current work areas. Extra precautions will be required to protect the new finishes if work is deferred. Additional construction in future on Carl Zehr Square would be disruptive to community programming and events and may not be well-received by citizens. A second construction project creates the potential for warranty conflicts. Some work completed by this project would need to be removed to tie-in the new waterproofing membrane and a different contractor may be usedfor the additional work. 4 - 9 Infrastructure Lifecycle Several design and construction techniques, as well as operating considerations, will be incorporated to prolong the expected lifecycle of building components once completed.These include: Deteriorated conditions and poor execution of the original construction will be addressed. A superior waterproofing system, with double the life expectancy of the current material, will be installed. The substrate has been meticulously prepared to eliminate problematic corners and crevices and ensure a good bond. Podium waterproofing will be continuously tied into the cladding system to protect the building envelopeand parking garage. Improved run-off management will be achieved with larger capacity trench drains, bi-level area drains and site elevation changes. Poured in place concrete surface, instead of pavers, will have fewer seams and corners that allow water penetration.The new hard surface will be resistant to heave and displacement that had previously resulted in trip hazardsand overall improving the accessibility of the site. Granite cladding will be fastened with stainless steel fasteners, raised to flush with grade level and sealedto minimize water and salt damage. Operationally, Parks and Cemeteries staff responsible for winter control activities at City Hall have been experimenting with alternative de-icing materials that are designed to be less corrosive to concrete. Previously, the surface on Carl Zehr Square wasgranitepavers laid adjacent to concrete pavers. Granite has a very low friction coefficient, and surface temperatures up to 5 degrees colderthan thesurrounding concrete, making it more slippery. Staff had to apply de-icing productsmore frequently andover a longer season to address thischallenge. A consistent concrete paving surface eliminates this differential and staff continue to evaluate any new products for their suitability in this environment. Undertaking the comprehensive renewal scope of work presents the best opportunity to prolong the lifecycle of all asset components – building, site and amenities – and achieve the vision of more accessible, flexible and sustainable outdoor spaces at City Hall. ALIGNMENT WITH CITY OF KITCHENER STRATEGICPLAN: The recommendation of this report supports the achievement of the city’s strategic vision through the delivery of core service. 4 - 10 FINANCIAL IMPLICATIONS: The budget increase recommended in this report is $2.2M, which represents an increase of almost 20% to the existing budget of $11.8M. If approved, the total City Hall Outdoor Spaces (CHOS) budget will be $14M. Given the importance and urgency of the CHOS project, Facilities Management staff have reviewed their existing capital balances and are proposing $815,000 of those funds be closed out to fund the CHOS project. These closeouts will come from projects that will help reduce the size of the Facility Infrastructure Gap, meaning this gap will not be addressed as quickly.Consideration of closeouts were based on updated condition assessment information, realigned timing due to COVID and opportunities to prolong the life of assets allowing for these projects to be re-prioritized to future years. The close outs from Facilities Management projects will provide a portion of the funding for the CHOS project. The remaining balance of $1,385,000 is proposed to be funded by the Tax Capital reserve fund.After making this transfer, the reserve will have a balance of $250,000. COMMUNITYENGAGEMENT: INFORM – This report has been posted to the City’s website with the agenda in advance of the council / committee meeting. PREVIOUS CONSIDERATION OF THIS MATTER: INS 16-066 City Hall Outdoor Spaces Master Plan INS 17-076 City Hall Outdoor Spaces Functional Design 2019 Budget Issue Paper – Cap04- Rehabilitating City Hall Outdoor Spaces INS 20-005 City Hall Outdoor Spaces Rehabilitation Update ACKNOWLEDGED BY: Denise McGoldrick General Manager, Infrastructure Services 4 - 11 INS 20-011 City Hall Outdoor Spaces Construction Update Appendix A –Photographs 4 - 12 Photo 2 Holein AnchoringAngle for Curtain Wall Framing Photo 1 Corroded Flashing Photo 4 Waterproofing Not Continuous Photo 3 Corroded Flashing & Framing 4 - 13 Photo 6 Damaged Door Frame Photo 5 Unsupported Door Threshold Photo 8 Granite Claddingwarped by moisture behind panel Photo 7 Gap in Door Frame / Not Tied into Cladding 4 - 14 Photo 9 Broken Granite CladdingPhoto 10Granite Cladding Panels Removed Photo 11Green Slate Wall Removals Photo 12Gap in Slate Wall Filled with Insulation 4 - 15 Photo 13College St. Exhaust Shaft Curb Deterioration Photo 14Corroded Exhaust Shaft Flashing (College St.) Photo 15Water Seeping from Ramp and Towards Building Photo 16Deterioration of Ramp 4 - 16 Photo 17Water under Membrane on Ramp Photo 18Stairs to Upper Terrace Photo 20 Salt Damage Under Stairs Storage Area Photo 19Disintegrated Concrete on Stairs 4 - 17 Photo 172 Upper Terrace and Doors Photo 21Salt & Water Staining Soffit Photo 184 Damage to Doors - Interior Side Photo 23Terrace Ponding and Slope Towards Door 4 - 18 Photo 26Utility Bunker College St. Photo 25Buried Structure King & Gaukel St. 4 - 19