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.
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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.
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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
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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
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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
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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
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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.
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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.
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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.
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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.
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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
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INS 20-011 City Hall Outdoor Spaces Construction Update
Appendix A –Photographs
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Photo 2 Holein AnchoringAngle for Curtain
Wall Framing
Photo 1 Corroded Flashing
Photo 4 Waterproofing Not Continuous
Photo 3 Corroded Flashing & Framing
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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
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Photo 9 Broken Granite CladdingPhoto 10Granite Cladding Panels Removed
Photo 11Green Slate Wall Removals
Photo 12Gap in Slate Wall Filled with
Insulation
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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
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Photo 17Water under Membrane on Ramp
Photo 18Stairs to Upper Terrace
Photo 20 Salt Damage Under Stairs Storage
Area
Photo 19Disintegrated Concrete on Stairs
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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
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Photo 26Utility Bunker College St.
Photo 25Buried Structure King & Gaukel St.
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