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Report regarding a resolution approving a consulting services agreement with ELS Architecture and Urban Design of Berkeley, California for the Orange Memorial Park Aquatic Center Project (Project No. pk2201) in an amount not to exceed $2,936,542, authorizing the City Manager to execute the agreement, and authorizing a total budget including contingency for a total not to exceed $3,320,197. (Philip Vitale, Deputy Director of Capital Projects)
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RECOMMENDATION
Recommendation
It is recommended that the City Council adopt a resolution approving a consulting services agreement with ELS Architecture and Urban Design of Berkeley, California for the Orange Memorial Park Aquatic Center Project (Project No. pk2201) in an amount not to exceed $2,936,542, and authorizing the City Manager to execute the agreement.
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BACKGROUND/DISCUSSION
Orange Pool is South San Francisco’s only indoor municipal swimming pool. Opened in 1970, it continues to serve as a community-wide destination for residents of all ages. The pool, which prior to the COVID-19 pandemic was in operation year-round, seven days a week, offers critical life-skill/safety learn-to swim programs, recreation, fitness, therapy, health, and wellness activities.
Prior to the pandemic, public demand for aquatic programs has grown year over year, well beyond the pool’s capacity. There were a total of 4,124 spaces requested on waiting lists for swimming classes and programs in 2019, which represents 1,112 unduplicated individuals, many of whom were on multiple waiting lists.
Annual Maintenance Costs
Operational costs are approximately $150,000 - $200,000 per year in personnel and materials for maintenance of the pool systems, not including daily custodial work, which is approximately an additional $50,000 per year. This does not include periodic capital improvement costs for various repairs that have been made over the years, such as replacing the pool’s plaster and ceramic tile bottom, locker and fixture replacement, HVAC systems, etc. However, budget requests in recent years for significant renovations have not moved forward, pending a decision on the future of the building.
Facility Description/Existing Conditions
The one-story building has a floor area of approximately 11,500 square feet, and contains a lobby, a 25-yard long six-lane swimming pool, locker rooms, staff offices, and mechanical room. Constant maintenance and ongoing repairs have certainly been made during the pool’s 51-year history, and much effort is expended to keep the pool as functional and pleasant as possible. However, high humidity, chlorine vapors, and heavy public use create a very harsh environment. Since its construction, the facility has not undergone any major rehabilitation. Today, the deteriorated condition is obvious upon even casual observation. Issues include crumbling and worn finish materials, dry-rotted wood, rusting steel structural and non-structural elements, deteriorated light fixtures, cracked, uneven and sometimes slippery floors, corroded aluminum window sashes, and large expanses of non-safety glass. Nearly every architectural element and mechanical/electrical system in the pool is due for replacement, except for the filters, which were recently replaced.
In recognition of these conditions, and the fact that the typical life expectancy of an indoor aquatic facility is 40-50 years, a professional feasibility study was conducted in 2016 by Marcy Wong Donn Logan Architects. Due to the size of the document, it has not been attached to this report, but is available for review in the City Manager’s office. The study’s conclusions, architectural concept design studies, and preliminary rough-order-of-magnitude (ROM) opinions of probable costs are based upon findings from a number of sources, including industry experts. Interviews were taken with Parks and Recreation personnel and other city staff. Comments were solicited and documented at several public forums. Input from Orange Pool users and community members was taken via survey forms. Multiple site visits were made by the consultant team for the purpose of technical condition assessments of the existing facility, and remediation recommendations. The existing facility’s spatial layout and square foot areas were assessed. A space program for a renovated or new pool was developed based on all of these sources.
The consultant team examined all structural and architectural systems, including mechanical, lighting, plumbing, floor and wall finishes, water treatment systems, and windows and glazing. The report confirms that the building’s design and construction are typical of the late 1960’s to early 1970’s. By today’s standards, Orange Pool’s architectural, structural and other building systems are significantly below current building code requirements and building owner expectations for seismic resistance, energy efficiency, water efficiency, indoor air quality and comfort, architectural lighting, room acoustics, ADA accessibility, daylight control, sustainability, and a range of family/user accommodations. The existing facility needs to be brought into compliance with California Title 24 and federal ADA requirements for accessibility and energy efficiency. The building design is well over a dozen code editions behind current applicable building code standards.
Typical of 1970’s construction, the building is not energy efficient. The exterior curtain walls and storefronts have the original single glazed windows in aluminum frames. The majority of the building is comprised of uninsulated CMU walls and concrete slab floors. The building’s lighting and electrical systems, mechanical units and plumbing systems do not meet current water and energy conservation standards.
Timing for Replacement
Despite the City’s attentive custodianship of the building, overall, the building’s age and heavy use have resulted in very worn condition of the shell and interior. As noted previously, virtually every observable component and system named above is part of the original construction and is well beyond the point of meriting replacement.
Based on a recent review of the feasibility study, and the known condition of systems in place to date, staff expects the facility will need to be closed within the next 0 to 5 years unless there is significant capital investment or wholesale replacement.
Options for Replacement or Renovation
After detailed analysis of existing conditions and community demand, the consultants drafted three scenarios for replacement or rehabilitation of the existing pool facility, as summarized below.
• Scenario A - Renovate the Existing Orange Pool Facility ($10,522,275 as of 2017)
• Scenario B - Construct a Separate New Warm Pool Facility ($21,380,835 as of 2017)
• Scenario C - Construct a New Two-Pool Facility ($22,363,600 as of 2017)
Scenario C envisions demolishing Orange Pool and constructing a new facility. The new natatorium includes both a lap pool and a warm water teaching pool. The bathhouse has the possibility of being two stories. This approach has the most advantages of any of the scenarios:
1. The facility layout can be designed for maximum functional efficiency
2. A new facility with both pools in one natatorium does not require redundant staffing
3. A well-designed new facility with two pools can simplify facility and security management
4. A modern aquatics center can be designed with ancillary spaces that are ideal for modern families with two working parents and young children
5. A new facility will be designed to be ADA accessible, environmentally healthy, energy efficient, sustainably designed, architecturally inviting, and seismically safe
6. Razing the existing facility and building a ground-up facility allows park master planning options
7. A new facility reduces the likelihood of unforeseen expenses that occur in renovation projects
8. This scenario has the highest benefit to cost ratio
It is important to note that the 2017 pool feasibility study only contemplated construction of a new aquatics center at its current location. The concepts developed through the feasibility study are illustrative.
Location Options for Aquatic Center Replacement
In April 2021 staff presented to the Budget Sub-Committee the 2017 Wong and Logan Feasibility Study with recommendation of the construction of a new two-pool facility. In May 2021 staff engaged Group4 Architects from the City’s on-call architecture firm list to explore alternative Aquatic Center locations within Orange Park and validate construction costs.
Working from the two-pool facility approach identified in the Wong and Logan study, Group4 refined the program to include an 8-lane/25-meter pool, separate teaching pool, swimmer’s lounge, rentable multi-use/party room, staff and pool director offices, locker rooms and support spaces for mechanical equipment within a 28,500 square foot single-story facility.
With input from staff and Callander Associates, the consultant developing the Orange Park Master Plan, Group4 assessed Orange Memorial Park to identify six (6) alternative pool locations. See Attachment 3, Site Options. Using an evaluation matrix that considered the facility, site, capital costs and operational costs for each of the 6 alternative locations as well as the current location were evaluated by staff.
The corner of Tennis Drive and West Orange Avenue was identified as the best alternative location for a new facility for several reasons:
1. Comparable cost to current location
2. Offers high visibility to those passing by and entering the park
3. Convenient access with connection to both West Orange Avenue and Tennis Drive
4. Opportunity to utilize the existing parking lot north of Tennis Drive
5. Good solar orientation with a wall of glass to the South and views across the lawn
6. Synergy between park buildings and elements
7. Opportunity to relocate the Veterans Memorial into an accessible plaza space
8. Minimal disruption to operations anticipated, phased construction will allow the existing pool to remain operational during construction of new facility with minimal closure due to move, commissioning and training
The attached presentation includes a diagrammatic plan of the building, plaza and parking layout along with a conceptual rendering of the Aquatic Facility. A new facility could be designed to complement the architecture of the Fernekes Recreation Building, and create a campus feel to this quadrant of the park.
Aquatic Center Project Duration and Timing of Expenditures
With a projected total project budget of $33.75 million, including escalation of 4% per year to mid-construction of Q3 2023, the overall project cost would be similar for a new facility were it to be constructed in the existing location or at the proposed Tennis Drive and West Orange Ave. location.
In September 2021 staff presented the Group4 feasibility study and funding strategy noted above to the City Council Budget Subcommittee. The Budget Subcommittee supported the pool relocation to Tennis Drive at West Orange Ave. In October 2021 staff held a study session with City Council with a similar presentation. At the direction of City Council, staff has moved forward with programming and planning, soliciting Request for Proposals for Architecture and Design Services of a new aquatic center.
Staff issued a Request for Proposals (RFP) on the ProcureNow website on November 24, 2021. Proposals were due on December 15, 2021, and seven firms submitted. One proposal did not meet the basic proposal requirements and was disqualified.
A&E Profession Services Base Fee Optional Services Total Cost
Barker Rinker Seacat Architecture $2,329,570 $152,390 $2,481,960
ELS Architecture and Urban Design $2,810,088 $2,810,088
Group4 Architecture Research + Planning $2,931,000 $175,000 $3,106,000
Marcy Wong Donn Logan $4,364.368 $4,364,368
WRNS Studio $3,696,870 $51,220 $3,748,090
The six proposals were reviewed by a panel of six consisting of the Assistant City Manager, Parks and Recreation Director, Recreation Manager, Recreation Supervisor, Acting Aquatics Supervisor, Parks Division Manager and Capital Projects Deputy Director. Attached to this report is the proposal evaluation criteria and scoring.
The three firms with the highest scores, ELS, Group4 and WRNS, were invited to participate in interviews. Interviews were conducted virtually on Monday January 24, 2022. The interview panel was composed of the Assistant City Manager, Parks and Recreation Director, Recreation Manager, Recreation Supervisor, Acting Aquatics Supervisor, Parks Division Manager, Facilities Manager and Capital Projects Deputy Director providing scores. A technical panel composed of the South San Francisco Principal Engineer and General Manager of Hayward Area Recreation & Park District (formerly the Aquatics Manager for the City and County of San Francisco), provided comments but did not score the interviews. Attached to this report is the interview evaluation criteria and scoring.
Based on interview rankings and discussion, staff requested references and site tours of completed aquatic facilities of the two highest ranking teams: ELS and Group4.
Staff toured the following facilities:
• Balboa Pool - San Francisco, CA
• Cañada College Wellness and Aquatic Center - Redwood City, CA
• The Boulevard - Dublin, CA
• Apex Center - McKinney, TX (virtual tour)
After reviewing the proposal, interviews, site tours and reference feedback, staff found the ELS team qualifications, which includes a five-time Olympic gold medalist in swimming, and project experience which includes several municipal pool projects, would be most applicable to the Orange Memorial Park Aquatic Center project.
FISCAL IMPACT
This project is included in the City of South San Francisco’s Fiscal Year 2021-22 Capital Improvement Program. It is staff’s intention to go to the bond market and procure funds for this project. The sale is planned for August 2022 with the intention of having the funding available in time for meeting the payment requirements to the consultant. The current CIP budget utilizes $1,200,000 from Infrastructure Reserves to fund the project through August 2022.
Design Consulting Services with ELS $2,936,543
Design Contingency (10%) $293,654
Total Project Design Funding $3,320,197
Available Project Budget $1,200,000
RELATIONSHIP TO STRATEGIC PLAN
Approval of this action will contribute to the City’s Strategic Plan. It aligns with Priority #2, which is focused on enhancing quality of life by building and maintaining a sustainable city, making our city a great place to live, learn and play.
CONCLUSION
Staff recommends the City Council adopt a resolution authorizing the City Manager to execute a consulting services agreement with ELS Architecture and Urban Design based on their qualifications, experience, references and understanding of the project.
Attachments:
1. Presentation for City Council
2. ELS Proposal
3. Proposal Evaluation Criteria and Scoring
4. Interview Evaluation Criteria and Scoring