City Council Report
City Council Meeting: January 27, 2015
Agenda Item: _3-F
To: Mayor and City Council
From: Martin Pastucha, Director of Public Works
Subject: Award Construction Contract and Construction Management Services Agreement for the Colorado Esplanade Streetscape Improvement Project
2. Authorize the City Manager to negotiate and execute a contract with All American Asphalt in an amount not to exceed $13,286,900 (includes a 10% contingency) for the construction of the Colorado Esplanade Streetscape Project.
4. Authorize the City Manager to negotiate and execute a professional services agreement with MNS Engineers, Inc. in an amount not to exceed $500,000 (includes a 10% contingency) for construction management services for the Colorado Esplanade Streetscape Project.
5. Authorize the Director of Public Works to issue any necessary change orders to complete additional work within budget authority.
6. Authorize the budget changes as outlined in the Financial Impacts and Budget Actions section of this report.
On January 6, 2015, 5 bids were received for the construction of the Project. After reviewing the bids received for this Project, staff recommends All American Asphalt for the construction of the Project in an amount not to exceed $13,286,900. Staff also recommends MNS Engineers, Inc. to provide construction management services including materials and geotechnical testing, construction monitoring and documentation in an amount not to exceed $500,000.
An after-hours construction permit would be obtained for work on Ocean Avenue, 4th Street, Main Street and portions of Colorado Avenue (see Attachment 1).
On June 28, 2011, Council authorized a contract with Peter Walker and Partners Landscape Architecture (PWP) to design the Project and prepare construction bid documentation. In compliance with California Environmental Quality Act (CEQA), a Mitigated Negative Declaration (MND) for the project was adopted by Council on March 19, 2013. In compliance with the National Environmental Policy Act (NEPA), a Categorical Exclusion (CE) was issued by Caltrans for this project as a result of the Preliminary Environmental Study (PES). CE re-validations were issued on June 26, 2013 and August 22, 2014.
On May 14, 2013, Council approved the final design for the Full Project, with the exception of the Gateway Triangle area (Figure 1).
Figure 1 –Full Project
At the same meeting Council also authorized staff to prepare a bid package and to solicit bids for a Reduced Footprint Core Project (Core Project) so that the project can be built at a lower cost (see Figure 2).
Figure 2 –Reduced Footprint Core Project
On September 2, 2014, in an information item, staff revised the Gateway Triangle design to provide more open space as requested by Council at the May 14, 2013 meeting (figure 3).
Figure 3 –Updated Gateway Triangle Design
At the request of Council and in order to meet the existing budget, the updated Gateway Triangle design was developed and utilizes only sidewalk, turf grass and meadow grass. This design was included with the Core Project that was bid for construction (Area D in Figure 4).
As design progressed, minor improvements to adjacent areas were identified as necessary for construction of certain intersections of the Core Project. These improvements could be completed at relatively low cost and include minimal restriping and slurry seals in Areas A, B, and C (Figure 4). Staff recommends that the work in these areas be added to this project. The area on 4th Street north of Colorado (Area E in Figure 4) was bid as an alternate and staff recommends including these proposed improvements in this project. The cost bid for Area E is much less than estimated and proceeding without constructing this area would result in significant redesign costs. The northeast corner of the Colorado and 4th Street intersection is being widened into 4th Street and the widening tapers roughly 200 feet northward to join the existing sidewalk condition. Without building Area E the taper would be eliminated and a new curved join line would have to be created incurring additional design costs and creating a less aesthetically appealing transition to the existing sidewalk.
The proposed improvements on the north side of Colorado at the east terminus of the project (Area G in Figure 4) are currently included in the offsite improvement plans for the adjacent OTO hotel development (OTO). It is anticipated that OTO will design and build improvements in front of their hotel that match the City’s Esplanade design. With the anticipation that Area G will likely be built by OTO, staff recommends constructing Area F as part of this project so that the Esplanade Design is continuous throughout this block. Areas A, B, C, D, E and F were added to the project that was bid for construction.
This Project would transform Colorado Avenue from a vehicular corridor to a multi-modal hub connecting the Los Angeles County Metropolitan Transportation Authority (Metro) Exposition (EXPO) Light Rail Downtown Santa Monica Station, downtown, the Santa Monica Pier, Tongva Park and the Civic Center area. The Project would convert Colorado Avenue (from Ocean Avenue to 4th Street) into a one-way, two-lane roadway, realign Main Street to join 2nd Street at one intersection, and widen the sidewalk along Ocean Avenue (see Figure 5).
The project would also significantly widen the southernmost sidewalk along Colorado, provide a separated two-way bike path, and provide new street trees and sustainable landscaping (see Figure 6).
In consideration of the stage 2 water restrictions approved by Council on August 12, 2014, the City has made several efforts within this project to significantly reduce the use of potable water for irrigation. This gateway triangle area, along with the rest of the landscaping in the entire project would be irrigated by treated urban runoff from the Santa Monica Urban Runoff Recycling Facility (SMURRF) reducing the need of potable water for irrigation. Landscaping throughout the majority of the 5.5 acre project would utilize underground drip irrigation thus reducing treated urban runoff consumption. The areas within 5’ of the pathways within the Gateway Triangle area would use drip irrigation as well. Areas more than 5’ away from the path would utilize restricted spray irrigation of treated urban runoff. The existing 0.38 acre gateway triangle area (before this construction) utilizes spray irrigation. Only 0.23 acres of the 5.5 acre project area would utilize spray irrigation, resulting in a 40% reduction in spray irrigated areas.
The construction portion of this project is partially funded by Congestion Mitigation and Air Quality Improvement Program (CMAQ) and Surface Transportation Program – Local (STPL) Funds. Both CMAQ and STPL funds are federal funding sources administered through California Department of Transportation (Caltrans). Federal funding requires the City to maintain thorough construction records and documentation in accordance with federal guidelines set forth by the Federal Highway Administration (FHWA) and Caltrans. A construction management team would be needed to assist City staff with the construction of the Project and adherence to federal funding guidelines.
Construction Management Scope of Services
Construction management services would include inspecting the contractor’s work during construction and ensuring adherence to approved plans and specifications, verifying and documenting field changes and unforeseen conditions, monitoring and mitigating impacts as a result of the construction activities, attending contractor’s safety meetings, attending progress meetings, and maintaining all necessary inspection documentation relevant to the work conducted during construction. Additionally, the construction management services would include providing materials and geotechnical testing, maintaining proper records for federally-funded projects, and wage compliance monitoring of the contractor to ensure compliance with the Davis-Bacon Act and state’s prevailing wage.
The not-to-exceed contract amount of $500,000 is based on hourly costs for inspection and construction management services. A Resident Engineer (RE) and a Night Time Inspector would be onsite as well as the City’s Project Construction Manager and Public Works Inspector.
Construction Manager Selection
On December 4, 2014, the City published a Request for Proposal for construction management services for this Project on the City’s online bidding site in accordance with City Charter and Municipal Code provisions. The City received nine proposals on December 30, 2014. A selection committee consisting of staff from the Civil Engineering Division reviewed, evaluated, and ranked the proposals.
MNS Engineers, Inc., Berg & Associates, Inc., and Cannon Corporation were invited to participate in interviews. The selection process followed the consultant selection guidelines set forth by Caltrans and FHWA for federally funded projects. Caltrans’ guidelines for professional services require that services agreements be awarded based on demonstrated competence and professional qualifications. The selection criteria included understanding of the project’s scope, experience on similar projects, qualifications of the proposed staff, familiarity with State and Federal procedures, and demonstrated technical ability.
MNS Engineers Inc. ranked highest among the three teams interviewed. MNS Engineers Inc. demonstrated extensive knowledge and experience on numerous federally-funded construction projects. Relevant projects recently completed by MNS Engineers Inc. include: State Route 246 Streetscape Improvements in Buellton, Coastal Rail Trail in Solana Beach, Willow Road Interchanges and Bridges in County of San Luis Obispo, and Magic Mountain Parkway Interchange in Santa Clarita. During the selection process, MNS Engineers Inc. demonstrated that it has the most qualified team for the project in accordance with Caltrans and FHWA specifications. MNS Engineer’s price is competitive with other consultants.
The construction management team would be led by the Resident Engineer (RE). The RE would be onsite every day the contractor is working and would be responsible for ensuring the contractor is in compliance with the project plans, specifications, permits, and environmental requirements. The RE would supplement a City team including a City Project Construction Manager and Public Works Inspector (daytime). The consultant would provide a part time inspector for night work and material testing services. The RE would be Joseph Ruzicka. As an RE, Joseph has completed several projects similar to this Project including La Brea Avenue Pavement Reconstruction Phase 1 in Inglewood, Moorpark Road Widening in Moorpark and Katella Smart Street Improvements in Anaheim.
The City’s public outreach consultant, whose services were previously procured, will be responsible for preparing and implementing a public information plan prior to project commencement. The public outreach consultant was hired utilizing the City’s procurement process for professional services for contracts under $80,000. During construction, the consultant and the construction management team would foster open lines of communication to receive feedback from the public and disseminate project information, ensuring constant outreach to the public and project stakeholders. Such information would include alerting the public about potential impacts, providing up-to-date project information regarding key milestones and overall project objectives, and periodic evaluation of outreach effectiveness. Public communication efforts would target not only motorists, but pedestrians and bicyclists, as well.
The key deliverables from the public communications team include the following:
· A public information plan that would familiarize the stakeholders with the project, the construction schedule milestones, and the long-term value of this project;
· The development and maintenance of an online construction schedule;
· A project hotline;
· Written public information materials distributed via US Mail, email, social media websites, and the City’s web page;
· Informational signs, banners, and other project graphics as directed by staff.
Project Street Trees
This project includes a number of City trees that are proposed for relocation, removal, and replacement. A comprehensive process was used to determine the number of trees impacted by construction and their candidacy for relocation. Each tree was assessed by a certified arborist to determine its overall health, structural characteristics, appraised value, and its ability to thrive if relocated, in order to determine which trees would be suitable for relocation. Utilizing this study and the specifics of the proposed project, 58 trees were identified as being potentially impacted. Seventeen (17) trees will be relocated, 18 trees will be removed and 23 will be protected in place.
The trees to be relocated would fill vacancies on streets with similar species and be planted within parks. The trees to be removed did not meet one or more of the evaluation criteria due to their poor viability, inability to tolerate relocation, or excessively high relocation costs associated with work that would be required on utilities, buildings, or hardscape around the current tree sites.
The Project will consist of the installation of 96 new trees including 71 Platanus Mexicanas (approved by Council on July 22, 2014), 13 Eucalyptus Degluptas, and 13 Howea Forsterianas. The project will provide a 5.3 for 1 (16 for 3) replacement for any City tree that is not relocated and must be removed.
The City and their public outreach consultant will provide public notification regarding the landscaping elements proposed. The community will have an opportunity to learn about the tree relocation and replacement plan, among other items, and provide input and feedback.
On November 18, 2014, the City published a notice inviting bids for the Colorado Esplanade Project. The bid was posted on the City’s online bidding site, and notices were advertised in the Santa Monica Daily Press and the Los Angeles Times in accordance with City Charter and Municipal Code provisions. The City Clerk’s office received 5 sealed bids, which were publicly opened by the Deputy City Clerk on January 6, 2015. The bid results are as follows:
Total Bid (Base+Alt.)
All American Asphalt
Sully-Miller Contracting Co.
Los Angeles Engineering, Inc.
PALP, Inc. dba Excel Paving Co.
The Engineer’s Estimate for the base project was $10,500,000 - $12,500,000.
The bid was evaluated on competitive pricing, understanding of the project’s scope, direct experience with similar projects, approach to the work, technical competence, qualifications of the proposed staff, and the ability to meet the project schedule. All American Asphalt’s price is competitive with other bidders. Staff contacted reference agencies listed by the contractor to ascertain past performance on similar projects, including Bristol Street Improvements for the City of Santa Ana, Crown Valley Parkway Street Improvements for the City of Mission Viejo, Route 710 Street Reconstruction for the California Department of Transportation, Street Improvements for the City of Long Beach, Hawthorne Blvd. Street Improvements for the City of Hawthorne, and Pavement Resurfacing for the City of Thousand Oaks. Staff verified with the Contractors State License Board that All American Asphalt’s license is current, active, and in good standing.
Staff recommends that a construction contract with All American Asphalt be executed in the amount of $13,286,900 (includes a 10% contingency).
With Council approval, staff would pursue executing the contract with All American Asphalt and issue a notice to proceed in March 2015. With a contract time of 325 calendar days, the Project is anticipated to be substantially completed and open to the public by late January 2016. The project would also entail coordinating with utility companies and the Macerich Multi-screen Arclight Movie Theater Complex construction. The EXPO light rail is tentatively scheduled to open for revenue operations between March and May of 2016, thus this Project would be on schedule to be substantially complete and open to the public before the light rail opening.
Coordination with Other Projects
This Project would take place at the same time as a several other capital improvement projects in the vicinity. The California Incline Bridge Replacement Project (Incline Project) is about 2/3 of a mile north of the Colorado Avenue and Ocean Avenue intersection and is anticipated to take place from February 2015 to May 2016. The Incline Project would require a full closure of California Avenue from Ocean Avenue to the Pacific Coast Highway (PCH) and would designate Moomat Ahiko Way and Lincoln Boulevard as the two detour routes. Vehicles using the Moomat Ahiko Way exit are anticipated to use Ocean Avenue to travel to and from north Santa Monica. The Esplanade Project construction time restrictions are set up so that any work along Ocean Avenue (particularly at the intersection of Ocean Ave. and Colorado) would only take place at night. Therefore any detour traffic that uses the Moomat Ahiko Way ramp would not encounter lane closures at the Ocean Avenue and Colorado Avenue during peak or daytime hours. The City also intends to phase construction so that a minimum of one lane of Colorado Avenue would remain open during construction.
Macerich is currently constructing a new movie theater on the third level of the Bloomingdale’s building at the northwest corner of 4th Street and Colorado Avenue. Their construction equipment is in the Phase 3 area of Figure 7. This project is underway and is anticipated to be completed in April of 2015. The Esplanade Project phasing plan accommodates this construction, thus resulting in no delays to the Esplanade Project.
Staff anticipates that Macerich would vacate the Phase 3 area prior to commencement of phase 3.
In addition, the EXPO rail construction will continue until approximately September of 2015 but is not anticipated to conflict with the Project construction. Two OTO hotel developments at the northwest and northeast corners of the 5th Street and Colorado Avenue intersection would be underway throughout the Project construction but are not anticipated to cause conflicts. Other annual City paving and utility projects would continue as normal but staff would implement phasing strategies to avoid conflicts with the Project and inconveniences for the public.
To mitigate traffic impacts and daytime access to parking structures and driveways, an after-hours permit would be obtained by the contractor for work where access and traffic must be maintained during business hours, contingent on satisfying notification requirements per Santa Monica Municipal Code 4.12.110, which requires notification to persons occupying property within a perimeter of 500 feet of the proposed construction activity. Anticipated hours and locations for the after-hours permit are provided in Attachment 1.
The Ocean Ave. and Colorado Ave. intersection paving would be done from 9pm-6am Monday through Thursday (with the exception of nights when there are special events at the Pier).
Traffic Impacts and Access
The construction sequence shall be defined by a four phase plan (reference Figure 7) that limits work impact to manageable phases using temporary traffic control plans. Eastbound traffic will be permanently closed from Ocean Ave. to 4th Street. Westbound traffic will be maintained during construction.
Phase 1 would require westbound vehicular traffic to be routed to the south side of Colorado Ave. while construction progresses on the north side. Traffic flow from Main Street to 2nd Street in this phase will be maintained.
Phase 2 would require westbound vehicular traffic to be routed to the north side of Colorado Ave. while construction progresses on the south side. The realignment of Main Street will take place in this phase and will require the traffic flow from 2nd Street to Main Street to be diverted to Ocean Ave. Northbound traffic from Main Street to 2nd Street would be maintained except for occasional day and night closures.
Phase 3 will only be necessary (as a stand-alone phase) if the Macerich theater construction equipment is still in place at the completion of Phase 1. If the construction equipment is not in place at the completion of Phase 1, work will proceed directly to Phase 3 while Phase 2 and Phase 4 will be combined into one phase. Pedestrian crossings on Colorado Avenue would be maintained and modified according to the phasing plan.
All driveways would remain open during business hours and delivery times. Driveway demolition and construction would be phased to allow the driveway to remain open during business hours and delivery times. Driveway demolition and construction shall be completed after close of business and temporarily restored to traffic by the next morning. Where possible, driveway work may be completed during the day if driveway width allows for the installation in two stages, which would allow vehicle access to remain.
When Council approved the Esplanade design on May 14, 2013construction management services adds additional costs. The project as recommend will require additional budget totaling approximately $2.4 million. Staff recommends entering into the construction management and construction contracts as outlined. Additional budget needs are recommended to be filled by appropriating Development Agreement contributions specifically designated for Colorado Esplanade construction that have not yet been budgeted, utilizing budget savings on a completed project, and drawing from available State Highway Relinquishment Funds as outlined below.
The contract to be awarded to MNS Engineers Inc. is for an amount not to exceed $500,000 (including a 10% contingency). Funds are available in the FY 2014-15 Capital Improvement Program budget in the following account:
Account No. Description FY14-15
C017040.589000 Colorado Esplanade –General Funds $500,000
Account No. Description FY14-15
C017040.589000 Colorado Esplanade –General Funds $100,000
The contract to be awarded to All American Asphalt is for an amount not to exceed $13,286,900 (including a 10% contingency). The construction contract with All American Asphalt will utilize CMAQ and STPL Funds which will be reimbursed as authorized through Caltrans. Funds are available in the FY 2014-15 Capital Improvement Program (14/15 CIP) budget in the following accounts:
Account No. Description FY14-15
C017040.589000 Colorado Esplanade –General Funds $ 4,734,474
C047040.589100 Colorado Esplanade –McGuire Thomas $ 160,000
Developer Agreement (DA)
C047040.589200 Colorado Esplanade –Ocean Ave. $ 200,000
Village Project DA
C207040.589000 Colorado Esplanade –CMAQ Funds $ 3,284,000
C207040.589010 Colorado Esplanade -STPL Funds $ 1,098,000
C207040.589020 Colorado Esplanade -Prop C Funds $ 1,175,227
C257040.589000 Colorado Esplanade -Water $ 25,410
Esplanade -Wastewater $ 192,060
Total 2014-15 CIP Funds Available $10,869,171
Award of the contract requires moving $487,310 of from account C017021.589000 to account C017045.589000 to utilize remaining budget from the completed Ocean Park Boulevard Green Streets project.
Award of this contract also requires the following additional appropriations:
Account No. Description FY14-15
C047040.589300 Construction -Macerich DA $ 120,000
C047040.589400 Design -Macerich DA $ 20,820
C047040.589500 OTO Hotel DAs $ 380,000
C047040.589600 1318 2nd Street DA $ 125,000
C047040.589700 State Highway Relinquishment Funds $1,284,599
Total Appropriated Funds Needed $1,930,419