SR-850-005-01 (9)
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APR 2 2 1986
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CM:LCB:dvro.
Council Mtg. April 22, 1986
Santa Monica, California
TO: Mayor and city council
FROM: city staff
SUBJECT: Recommendation to Proceed with Main Library
ceiling Replacement and Renovation
Introduction
On September l7, 1985 the city Council authorized a six month
extension of the planning process for the Main Library ceiling
repair project to allow staff and public review of options for
enhancing library service/facilities in conjunction with ceiling
removal and repair. This review included consideration of both
new library construction on alternate sites as well as remodel of
the existing facility to meet present and future space needs.
The public review process was conducted by the Library Board and
their comments and recommendations have been incorporated herein.
In addition, Library staff have been closely involved in
discussing various options and needs and their concerns and
comments are likewise incorporated. Both the Library Board and
staff are to be commended for their thoughtful participation and
assistance in assessing this complex, technical situation.
Background
In 1985 - 86, the City council allocated funds for repair of the
Main Library ceiling to remove the asbestos-based ceiling
material. The cost of this proj ect has been estimated at $2
million. As the time approached to begin the project in the fall
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of 1985, Council consideration of redevelopment of the civic
Center site advanced to a stage where the opportuni ties for
construction of additional public facilities on the site appeared
possible within a reasonable time frame.
staff recommended
consideration of a new Main Library on the civic site to meet
pressing library space needs both in terms of public services and
parking
which otherwise were not addressed in the ceiling
removal project.
In addition, there appeared to be significant
opportunities for mixed use and shared parking on the site.
Council concurred with the recommendation and upon request of
both Library Board and individual councilmembers expanded the
scope of alternative sites to include other publicly owned
parcels.
Since September, the following tasks have been undertaken and are
addressed in this report:
1) Library space needs analysis to the year 2000.
2) Feasibility review of four potential locations for a Main
Library - the Civic Center; the existing site; Madison
School; 3rd and 4th street Parking Authority lots.
3) Remodel/renovation options for the existing Main Library.
4) Operational and maintenance procedure revisions to insure
the continued safe environment of the Main Library for
both staff and the public.
Library Space Needs Analysis
A building program outline was prepared by Robert Rohl f , a
library space consultant.
His study indicated a need for an
87,520 square foot facility by the year 2000.
The present
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library building, excluding basement garage and delivery area
contains 59,035 square feet. In arriving at this recommendation,
the consultants utilized population growth statistics; records of
non-resident use; and user and community surveys. This led to a
design population for the year 2000 of lI2,376. Further, public
service objectives and efficiencies, desired effective use of
staff, logical grouping of collection and service areas indicated
that a minimum floor area for pUblic service functions would be
35,000 square feet, with 45,000 square feet considered most
desirable.
The present library footprint consists of 25,000
square feet of usable public service space.
It appears from this analysis that the most critical space
shortages are in the area of shelving, periodicals, audio visual
children's room and circulation. Meeting area was the only area
of suggested reduction.
site Evaluation
In evaluating the four suggested sites for library location, the
following criteria were employed:
I) Accessibility
to
the
greatest
number
of
users.
Considerations in this area include:
a) an area which is frequently visited by all segments
of the community during daily activities.
b) Busy primary streets with the library located at an
intersection, if possible.
c) proximity to mass transit points.
d) an area of high pedestrian traffic.
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e) convenient access to public parking.
f) high visibility and identification with the area.
g) drawing influence of adjacent activities --
i.e., retail, commercial.
h) amenities
aesthetic
factors
and
potential
enhancement to an area.
i) liabilities
nuisance
factors
of
adjacent
properties/activities -- e.g. safety, visual.
j} relation to current and future population and present
branch libraries.
2) Size and shape of property.
3) Cost and availability.
The four sites selected by the City for evaluation had several
features in common -- location in the Central Business District:
public ownership: and adequate size to meet the suggested
building footprint.
User surveys further indicated that:
70% of patrons came to the library by automobile
17% came by walking
10% came by bus
3% came by bicycle or other means
Of those who walked to the library, 41% used the library in
connection with shopping or other errands.
Reasons for using the Main Library included: materials needed
were only available at the main facility (41%) and it was the
facility closest to individuals' homes (35%).
overall, the
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conclusion drawn by the surveyors was that the Main Library is
not first of all a neighborhood/residential library but a major
commercial governmental service requiring a central commercial
type location and adequate parking.
Each site was statistically ranked by the consultant on criteria
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staff then made adjustments for traffic and parking
considerations. On a 620 point range, all sites fell between 420
and 515 points. Therefore, cost and availability become a key
factor in decision-making.
Preliminary cost estimates for each site prepared by staff
follow:
Ceiling Repair Only
$2
m
Existing Location
Ceiling removal $2 m
Remodel/addition (to 87,000 sq. ft.) 4 m
Parking
3.2 m
Interim space
.4 m
Total
$9.6 m
3rd & 4th Street Lots
New construction
$11. 4 m
Parking
Sale/lease of existing site
4.4 m
(5.1)m
$10.7 m
Madison School
New construction
$11. 4 m
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Total
.
0 - 4 m
2.4 m
(S.l}m
$8.7 - l2.7m
.
Land acquisition
parking
Sale/lease of existing site
civic Center
Parking
Sale/lease of existing site
$11. 4 m
$1. 2 - 2. 4m
New construction
Total
(5.1)m
$7.5 - 8.7m
The Library Board conducted two public workshops (attended by a
total of 120 people) as well as a subsequent Board meeting to
receive input and make recommendations on site preferences. From
these meetings, it became apparent that there was no significant
interest and/or support for constructing a new library at an
al ternate location.
with specific regard to the civic site,
concerns expressed included: the location of three libraries in
the southern part of the city; perceived problems with public
access; and isolation from other activities which attract people.
Such support becomes crucial in assessing potential financing
mechanisms for a new construction venture. The Library Board has
recommended removal of the ceiling material and the maximum
remodel possible within available financial resources by a
construction start date of July, 1987.
Existinq Library Renovation
Based on the above findings, staff requested a more detailed
analysis of renovation options for the existing library. As
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indicated earlier, there are a wide range of costs associated
with remodeling or expansion of the building.
Alternatives considered ranged from interior rearrangement of
stacks, furniture and lighting to expansion of the building to
the northwest and/or southwest corners. In-between alternatives
or combinations thereof included flooring over the mezzanine;
expanding into the basement; eliminating the interior patio; and
relocation of various departments.
In reviewing the various options presented, a major consideration
from both a cost and feasibility aspect, was not to exascerbate
the existing parking problems in the adjacent library lots.
Included in this category of review were options for dealing with
the ceiling problem.
At the time the study extension was
granted,
it was thought that there might be relatively
inexpensive interim encapsulation methods which could be
undertaken to avoid moving to interim space while major
construction was underway.
This option has not proven feasible
and encapsulation costs are estimated at $1 million with various
concerns raised about the long-term advisability of this approach
in light of any future remodeling plans.
During this period, staff also requested a review and update of
the estimated removal costs and it appears that the $2 million
figure currently in use as a planning figure is still valid.
Operational Issues
A basic premise underlying all staff action on this project has
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been a concern for the health and safety of the staff and public.
since the magnitude of the project was identified in late 1983,
several procedures have been instituted to insure continuation of
a safe environment.
Periodic air sampling, staff education
efforts and revised maintenance procedures have been in effect
since that time.
Because of growing staff concerns, these
procedures have been stepped up during this planning extension.
In light of the complex technical and scientific nature of the
issue, as well as differing informed opinions, two consulting
firms have been utilized to review test results and make
recommendations on appropriate maintenance and operational
procedures for staff to follow.
As background for assessing the situation, several key factors
must be noted:
l) Asbestos is only one component of fibers which circulate
in the air.
Air sample tests as required by Cal OSHA
measure total fiber content in the air.
The tests
consistently indicate levels of fibers well below
recommended action levels.
I f there had been findings
which indicated levels of concern, both the staff and Cal
OSHA would have taken immediate steps to remedy the
situation. The fiber readings in the Library are similar
to what would be found in any building
even one
without asbestos.
The readings are approximately in the mid-range of school
classrooms which have been documented in various studies,
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many of which are still in use.
.
A recent EPA report
estimates that l5 million children attend schools where
friable asbestos is present. An EPA survey of buildings
other than schools estimates that 700,000 commercial,
residential apartment and federal buildings contain
friable asbestos.
2) Asbestos occurs naturally in the environment.
It is in
the outside air and even mined in California.
Some
readings in the library have actually been lower than the
ambient air outside the building.
3) Asbestos is only a potential problem when airborne. Its
presence in various products poses no danger.
4) Asbestos-related diseases have only been documented
longitudinally in manufacturing environments where the
concentration is over loao times greater than that found
in the library.
Safe or unsafe levels of asbestos in
other exposure situations are simply not known nor are
there regulations of the Environmental Protection Agency
or Cal-Osha governing required removal actions in this
situation.
The only current federal regulation that
requires asbestos be removed from buildings is an EPA
rule saying asbestos materials must be taken out of a
building before it is demolished.
5) While we have been told by certified industrial
hygienists that the environment in the Main Library will
most likely remain safe for the foreseeable future
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(assuming continuation
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of
revised
operational
procedures), it is accepted that the ceiling material
will deteriorate over time and will continue to interfere
with normal operations of the library if ceiling material
becomes dislodged.
6) Risks from asbestos-related diseases must be viewed
relative to other types of risks faced by individuals in
their daily lives.
Lifetime Risks per million Persons
Dying of heart disease
100,000
Dying in automobile accident
10,000
Lung cancer from cigarette smoking
88,000
Cancer from drinking diet soft drink
containing saccarine per day
170
Cancer from passive cigarette smoke,
exposure one hour per day
110
Not wearing car seat belt for one month
11
Cancer from aflatoxin in peanut butter
Cancer from living in a brick house with
radon exposure
II
4
Cancer from working for 40 years in a
building with 0.001 flcc airborne
chrysoti1e asbesos,
smoker:
16
non-smoker:
3
Cancer from attending high school for
3 years with 0.001 flcc chrysotile
asbestos
0.7
Dying in school bus accident
16
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7) Asbestos removal is a complicated and costly task, which
if done improperly, can leave higher air levels of
asbestos in the building than existed before the work
started.
In this complex arena, the city has taken steps to address
health concerns of library employees.
Medical examinations have been given to all custodial
employees and offered to other library employees.
The examinations by an internist with experience in
asbestos-related diseases included detailed medical
histories; x-ray series; an upper body physical
examination; and a pulmonary function test.
Maintenance procedures have been revised and are
continuing to be fine tuned.
These procedures
include wet dusting; steam cleaning of carpets,
special disposal methods for waste, special filtered
vacuums; periodic spot book-top and shelf cleaning.
Air monitoring samples are taken on a quarterly basis
and have been expanded to include breathing zone
tests.
The library was relamped in January in response to
growing concerns over the number of burned out
lights.
Air monitoring tests were taken after the
work was completed.
Further relamping is scheduled
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shortly in some areas which have experienced
continued problems with lighting failures.
The custodial crews have been consolidated with all
other city custodians under the direction of General
Services.
This was done to ensure uniformity in
training as well as allow flexibility in deploying
resources to meet library cleaning needs.
The city has retained two contractors experienced in
working with asbestos to be on-call in the event of
maintenance needs beyond the scope that staff can
handle.
Extensive training has been provided to staff members
responsible for library cleaning to insure that
maintenance procedures appropriate to the environment
are employed.
Analysis and Recommendations
staff feels that the planning extension has proven valuable in
providing a more thorough review of the policy options available
to ensure cost-effective use of City resources.
The additional
information collected during this period has enabled development
of a recommendation which will not only resolve the ceiling
problem in an expeditious manner but also provide a partial
solution to library service expansion needs without resorting to
debt financing.
This recommendation leads to a proj ect start
date of January 1987 with an anticipated library closure of 9
months. The components of the recommendation follow:
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Move immediately to select an architect to design a
partial flooring over of the mezzanine; more efficient
rearrangement of shelves, furniture and various library
functions; and lighting realignments to expand public use
areas. This work is to be incorporated with the ceiling
project.
Complete specifications for removal of the ceiling with
particular attention to liability protections for the
city.
Prepare interim space in the following city facilities:
Ocean Park Library Community Room
1000 sq. ft.
Fairview Library Community Room
1000 sq. ft.
Airport Administration Building
5000 sq. ft. for administrative and
technical processing
Airport hangar
10,000 sq. ft. for book storage
This interim space plan will meet minimum needs to keep
necessary administrative activities
functioning and
maximize
funds
available
for
long-term
library
improvements.
To
accommodate
public
needs,
some
expansion of branch hours is also proposed.
Permanently assign the library custodial staff to General
Services.
continue fine tuning revised maintenance procedures to
meet operational needs while ensuring employee safety.
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Proceed immediately with carpet steam cleaning; relamping
selected areas; and spot vacuuming of certain collection
areas.
Proceed with the library automation proj ect to include
hardware and software selection in the summer of 1986 and
site preparation to be included in the remodeling work.
Placing bar code labels on books will be scheduled after
move-in to the remodeled facility.
Work with Personnel and affected employees to develop
personnel deployment plans during the closure.
Continue discussions with the YMCA regarding possible
participation in the construction on their proposed
parking structure to increase parking availability for
the Library.
It should be noted, however, tha t the
remodel recommendations identified in this report were
specifically chosen because they would not adversely
impact current parking availability.
Budget Impact
At the present time, $I,66l,076 is appropriated in the capital
improvements budget for this project.
It is felt that an
additional $400,000 will be necessary for the approach presented
in this report. These funds have been included in the proposed
1986 - 87 budget.
As indicated earlier, lack of expressed public interest/support
for a new or greatly expanded library obviated the need for an
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extensive survey of debt financing methods since those identified
all require voter approval.
Conclusion
The recommendations presented herein represent what we believe is
a responsible response to both the long-term interests of the
community for expanded library services and the current concerns
of library staff.
Consideration of more extensive construction
options is not recommended due to both estimated financing gaps
and the adverse effect on staff morale which would be caused by
remaining in the building for at least three additional years.
Prepared by: Lynne C. Barrette, Assistant City Manager
Carol A. Aronoff, City Librarian
(Library2)
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