SR-061196-9CPCD:SF:PC
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Council Meeting: June 11, 1996
JUN ~ ! i~96
Santa Monica, California
TO: Mayor and City Council
FROM: City staff
SUBJECT: Update on New Public Safety Facility
INTRODUCTION
This report provides an update on the schematic design process for
the new Public Safety Facility which will include police
headquarters, fire administration and a dedicated emergency
operations center. This report also provides background as to the
history and deficiencies of the existing building, Council action
to date, a summary of the proposed building, cast analysis, the
planning process for approval of the building, potential Total
Energy Services applications, and information on further actions
required to place the measure on the November 5, 1996 ballot.
BACKGROUND
During emergencies, the City of Santa Monica has a responsibility
to protect lives and property. Santa Monica needs an effective
means of managing and coordinating the response of police, fire and
outside agencies involved in law enforcement and emergency
services. Far many years, it has been felt that the existing
Police Department facilities da not adequately provide for existing
and future Department needs.
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There are a number of deficiencies with the existing police
station, fire administration, dispatch and emergency operations
center that have been identified as a result of daily operations as
well as disaster response. The following summarizes those
deficiencies:
o Not built to earthquake standards
o Electrical system inadequate to support police
communications and investigative technology
o No dedicated Emergency Operations Center
o No ADA access to basement or 2nd Floor
o Antiquated mechanical, plumbing, and security systems
o Inappropriate multi-functioning spaces
o Evidence storage capacity sevezely limited
a Crime analysis lab limited by space constraints and
outdated technology
o Poor fire/life safety systems
0 2nd Oldest Jail in State, with inadequate capacity
o Absence of prisoner containment area (sallyport)
o Inadequate Squad Room
A more extensive description of these deficiencies is provided in
Attachment A.
The experience managing the emergency response and recovery
operations for the January 17, 1994 earthquake illustrated to the
City its facility shortcomings and highlighted the importance of
centralizing and coordinating the activities of all public safety
and law enforcement agencies.
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PREVIOUS COUNCIL ACTION
On August 2, 1994 the City Council considered placing a $33 million
bond on the November, 8 1994 ballot to fund the Police, Fire and
Emergency Operation Center building. Instead, the Council directed
City Staff to proceed with the schematic design of the facility,
environmental review, community outreach, and place a bond measure
on the ballot by no later than Povember, 1996.
In February, 1995 the City released a Request for Qualifications
(RFQ) for architect services to over 100 RFQ's architect firms who
expressed an interest in the project, including numerous Santa
Monica firms.
The City received 32 statements of qualifications from interested
architect firms and their project teams, and narrowed the list to
four finalists. The selection committee then conducted an
extensive review process which included a detailed supplemental
questionnaire, tours of recently constructed facilities by the
architect teams, interviews, and reference checks.
Dworsky Associates was selected based on their experience designing
police facilities, experience of staff proposed for the project,
history of quality and cast control an public projects, design
strength, and project team, including sub-consultants.
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On August 8, 1996 the City Council authorized the City Manager to
negotiate and execute a contract with Dworsky and Associates in an
amount not to exceed $800,000, plus contingencies.
Dworsky Associates had the following summarized scope of services:
o Update and finalize programming study based upon 1990
analysis and 1994 Ross/Drulis analysis. This will
provide the final needs assessment and size of the
facility.
o Prepare technical studies, including soil, geotechnical,
seismic analysis, survey of proposed site, civil
engineering review of storm drains with State of
California and County of Los Angeles, and preliminary
design of Olympic Drive extension.
o Schematic design of the new facility, including size,
height, adjacencies, layout, and exterior design.
o Detailed cost estimate of construction cast for use in
ballot measure.
o Begin preparation of Environmental Impact Report (EIR).
PROPOSED BUILDING
In 1988 the City determined that the existing police facility
needed to be replaced due to Ynadequacies. A study was initiated
to determine the future building needs. It was completed in 1990
and updated in 1994.
The 1990 needs analysis determined that approximately 120,000
square feet eras necessary to accommodate the needs of the Police
Department in the future. Further development of the new facility
was delayed at that time until completion of the Civic Center
Specific Plan (CCSP). The CCSP allows for the construction of a
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new police department building of up to 120, 000 square feet located
east of the existing City Hall and north of the proposed Olympic
Drive extension.
With the approval by the voters of the CCSP in June, 1994, the
programming and space needs for the building were updated by
Ross/Drubs Architects in July, 1994. At that time the fire
administration and a dedicated emergency operations center were
added to the building without increasing the overall square
footage.
The proposed four story, 56 feet high building has a floor area of
118,800 square feet, and includes two subterranean levels. Key
components of the building include 81, 000 GSF far Police Department
and jail facilities; 6, 200 GSF for Fire Administration; a 3, 635 GSF
Emergency Operations Center; a 4,250 GSF coordinated dispatch
center; and 100 subterranean parking spaces for official vehicles
on the two subterranean levels. The proposed public entrance will
be on the south side opposite from Olympic Drive.
The attached floor plans (see Attachment B} show the division of
operations in the proposed building, including the following:
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FLOOR SIZE USE
(Square Feet)
2nd Level 17,878 Property and Evidence
Basement T.D./Technical Support
Firing Range
lrst Level 42,482 Patrol Operations
Basement Jail (Main Level)
Jail intake
Lockers
Police Officer Assoc.
1st Floor 17,474 Lobby
Community Relations
Traffic and Parking
Operations Administration
Jail Mezzanine
2nd Floor 18,318 Fire Administration
Emerg. Operations Center
Communications/Dispatch
3rd Floor 14,274 General Investigation
Special Enforcement
Special services
4th Floor 8,331 Administration Services
Internal Affairs
Office of Chief of Police
TOTAL
118,757
The building will also include modern communication facilities,
including a ne~~ 911 communication system allowa.ng for coordinated
dispatch between the police and fire functions. Community policing
programs and police substations throughout the City will continue
to operate in their current fashion.
In addition, it is necessary that the Olympic Drive extension from
4th Street to Main Street be built in conjunction with the new
building in order to provide for emergency access from the building
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to 4th Street and the I-10 Freeway on-ramp. It is also necessary
to build Olympic Drive as part of the Civic Center Specific Plan,
which calls for the roadway as designed. The remaining portion of
Olympic Drive from P4ain Street to Ocean Avenue will be built as the
Rand property is developed,
COST ANALYSIS
A cast analysis for all project casts was prepared by Dworsky
Associates, the JCM Group, and Iskander Associates, and includes:
construction costs for the building; 100 subterranean parking
spaces; 0lympzc Drive; additional design fees; construction
management; contingencies; fixtures, furnishings and equipment;
and all other related items.
The estimated cost of construction for the building,including
subterranean parking, is approximately $32.3 million. The
estimated cost of constructing Olympic Drive, which is necessary to
support the building, is approximately $2.58 million.
However, associated with any construction project are design fees
and other direct casts, including design, architectural and
engineering services with regards to working drawings, and direct
costs such as off-site mitigation, testing and certification during
construction, and administrative and management fees. These
estimated costs are approximately $5.75 million.
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And finally, furniture, fixtures and equipment are necessary to
make the building operational once it is constructed. The casts
are estimated to be approximately $3.5 million. Therefore, the
total cost for the project is approximately $44.13 million.
Over the past two years, $12.5 million of general fund revenues has
been set aside to help fund the construction the Public Safety
Building. This leaves approximately $31.53 million needed to
complete the project, which could be funded by a General Obligation
Bond measure, additional general fund monies, or other financing
alternatives. Proposition C funds may also be available for the
final design and construction of Olympic Drive.
PLANNING PROCESS
As noted above, the architect has focused on the preparation of
schematic design plans, which do not reflect the final design of
the proposed building. The major focus of the past nine months has
been to finalize a detailed space program for the building, and
develop an accurate cost necessary to build the facility and
Olympic Drive within the parameters of the Civic Center Specific
Plan development centers.
Technical studies on civil engineering, geotechnical, seismic, and
other issues have been conducted. Mechanical, Electrical, Plumbing
and Structural engineers have prepared schematic design documents
for those specialty areas outlining required needs and costs. A
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peer review process was conducted on each of those areas to ensure
the structural integrity of the facility, and that the building is
as energy efficient and cost effective as is practical for an
essential facility which operates 24 hours a day.
The design is only schematic and a complete design review process
which includes Planning Commission and Architectural Review Board
approvals will occur after November, 1996 if the bond measure is
placed on the ballot by the Council and approved by the voters.
This process will be consistent with the standard approval process
for any new building of this size, including review by the
California Coastal Commissian. An Environmental Impact Report
(EIR) will also be prepared for the facility and will begin now
that the schematic design is completed. It will take approximately
six to na.ne months for preparation of a Draft EIR for public
review.
TOTAL ENERGY SERVICES
Over the past year, City staff have been working on determining the
feasibility of a Total Energy Services (TES) approach to the Public
Safety Facility, and perhaps the entire Civic Center area. TES as
at relates to the Public Safety Facility, would mean one entity
would provide all energy supply (electricity, natural gas,
utilities, etc.) and demand services (mechanical equipment,
heating, cooling, etc.) far one annual cost. This would include
supplying all the utilities to the building, as well as design,
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installation, operation and maintenance for all mechanical systems
in the building, which includes heating, refrigeration, air
conditioning and lighting. The cost-effectiveness of this approach
will be compared to the conventional approach.
The Public Safety Facality schematic design will be compatible with
either the conventional energy services approach ox with a TES
provider approach. In addition, the building design allows for the
flexibility to connect to a future Civic Center-wide heating and
cooling facility, if one becomes feasible.
ELECTION PROCESS
If the City Council chooses to place the Public Safety Building
bond measure on the November 5, 1996 ballot, the process for doing
so includes adoption of an ordinance calling for the bond election,
a resolution of necessity for the bond measure, and a reimbursement
resolution allowing for the reimbursement of costs related to the
desa.gn of the facility incurred before the issuance of the bonds.
All of these measures must be adopted by August 9, 1996, which is
the legally required 88 days before the November 5, 1996 election.
Staff expects to return on July 23, 1996 with the necessary
ordinance and resolutions to place a General Obligation band an the
November 5, 1996 election.
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BUDGET/FINANCIAL IMPACT
There is a budget/financial impact to building the new Public
Safety Facility. The total cost far the project as outlined above
is estimated to be $44.13 million, including construction of the
building and subterranean parking, Olympic Drive, design and
architecture fees, direct costs, and furniture, fixture and
equipment. $12.5 million has currently been set aside to help fund
the construction of the project, which leaves $31.63 million needed
to complete the project, which could be funded by a General
Obligation Bond measure, additional general fund monies, ar other
financing alternatives. PropositYOn C funds may also be available
for the final design and construction of Olympic Drive.
RECOMMENDATION
It is recommended that the City Council review the update provided
an the proposed Public Safety Facility and provide direction on any
additional steps on this protect.
Prepared by: Richard Bridges, Fire Chief
James T. Butts Jr., Chief of Police
Suzanne Frick, Planning and Community Development
Director
Paul Casey, Assistant to the Director
Attachments: A: Summary of Existing Deficiencies
B: Proposed Public Safety Facility Floor Plans
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ATTACHMENT A
SUMMARY OF EXISTING DEFICIENCIES
There are a number of existing deficiencies with the existing
police station, fire administration, dispatch, and emergency
operations center.
The existing Police Department Headquarters was built in 197 to
house approximately 160 employees, with only a minor addition in
1979. The current Police Department is approximately 440
employees, with future staff projections of 582. The current
facilaty is 44,000 square feet, of which 9,000 square feet is far
the jail.
The existing building does not provide an effective environment for
the management and coordination of emergencies or administering the
needs of Santa Monica. The building as it is presently configured
is difficult to secure, and basic spaces for police operations are
missing or shared with other functions. When the EOC is activated,
the Palace Department loses use pf its squad roam. The crime lab,
photo lab and technical departments are severely undersized and
require modernization. The Police Property Room is filled beyond
its capacity and the secure storage of confiscated weapons and
drugs is difficult. These conditions impact the department's
ability to investigate crimes, rapidly identify individuals and
quickly apprehend suspects.
Due to lack of space, cex-tain administrative sections have been
moved offsite. This condition fragments the administrative and
management structure of the organization and impacts overall
coordination of law enforcement and emergency response activities.
The existing building does not meet current seismic codes or
American with Disabilities Act {ADA) accessibility provisions and
has antiquated and ineffective mechanical, electrical, plumbing and
security systems . Structural , ADA and fire code retrofits would be
necessary for the ongoing operation of the building. Basic Police
Department automated security systems such as closed circuit
television, voice-activated duress alarms {jail), automated lacking
systems and normal fire and life safety warning systems are non-
existent, or don't meet current standards.
The current Santa Monica Palace Department building functions as an
essential facility, but lacks the structural and building systems
necessary for it to be fully-operational after a major earthquake.
During the 199 Northridge earthquake, the Police Department and
Emergency Response teams had to rely on mobile communications
during the first phases of the response because of building power
and communications system difficulties. Disruptions of this sort
to emergency communications ar 911 operations are unacceptable and
multiple levels of redundancy for those systems are lacking or
inadequate in the existing facility and are being planned far the
new building.
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The existing jail is approximately 9,000 GSF, the second oldest in
the State, and does not meet current code requirements established
by the Board of Corrections, Uniform Building Code and Americans
with Disabilities Act {ADA).
The fail does not have a sallyport for the safe, effective transfer
of prisoners to security vehicles. Danger of escape is heightened
by direct links from the nail to public circulation. Direct
supervision of all inmates from one central security control point
does not exist, necessitating increased staff observation of
custodies. The new design will allow the jail to be operated more
effic~.ently, allowing mare officers to be assigned to patrol.
The victim/witness program is not efficiently provided for in the
existing facility. The building does not provide special areas for
private victim/witness interviews, counseling or assistance. The
program is compromised by lack of interview rooms and secure
circulation paths that are not interrupted by access to the jail.
The 1994 Northridge Earthquake highlighted the disadvantages of the
Fire Department operating out of three different locations away
from City Hall, the Police Department, and the Emergency Operations
Center, by creating a need for establishing a central point of
coordination before an emergency response program could be put in
place.
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Daily Coordination activities are also less effective due to the
physical separation of functions. Portions of these offices are
also fatally inaccessible to persons with disabilities and contain
basic mechanical, electrical, plumbing and communications systems
deficiencies.
The existing space in the present administration building is
inadequate for an updated Fire Administration office which should
include centralized administration services, central dispatch,
paramedic coordination, resource management and f ire prevention
activities. A benefit of centralizing these functions would
include coordinated emergency response operations to the community
from a location in which key players can work together with
adequate space and systems, as well as locating fire plan checking,
Nuisance Abatement Board members, and the prevention bureau in the
immediate vicinaty of the Planning, Building and Engineering
divisions.
The existing Police and Fire Dispatch Centers are located in two
separate buildings in the City and do not provide direct backup to
each other. Ca-locating police and fire central dispatch centers
within one building will increase the effectiveness of the City's
emergency management system.
There currently is no dedicated Emergency Operations Center {EOC)
in the City. When an EOC is activated, it is located in the
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existing Police Department squad room in the basement, which forces
the Police Department to lose its only department-wide briefing
roam at a time when it is the most necessary. In addition, the
existing EOC lacks computerized support systems necessary for
automated emergency management planning and response, and does not
have backup emergency power or uninterrupted power sources.
Although the City successfully responded to the recent earthquake,
the absence of modern communication and support systems was very
apparent. The Police Department received emergency phone calls
through their emergency mobile van for hours after the earthquake.
The Northridge Earthquake also demonstrated that Santa Monica needs
a dedicated emergency operations center designed not only for
coordinating responses, but also for prolonged recovery, planning
and training operations. The proposed EOC will provide these
services, including up-to-date communications, data and building
systems, and be constructed util~.zing the mast modern seismic
design criteria. 6~Then not used for emergency purposes or training,
the EOC will be able to double as a community room in the new
Public Safety Facility.
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ATTACHMENT B
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