Staff Report - April 2, 2002 - Agenda Item

The existing clubhouse was dedicated in April 1970 and has since served its economic life and is functionally obsolete by today�s clubhouse operational and functional standards.[1] The clubhouse does not meet ADA compliance requirements for accessibility, structural integrity for earthquake standards, does not have a fire suppression system other than fire extinguishers and an ANSI system for its kitchen equipment, and is not energy efficient. In addition, County Health Department standards have become more stringent and would otherwise preclude the current snack bar and kitchen from operating under current applicable provisions.

Milestone Activities � The Clubhouse Replacement Project was �officially� kicked-off in June 2002. Three separate public outreach efforts that presented conceptual program alternatives were held in August 2004, May 2005, and December 2005. These outreach efforts finally culminated in the acceptance of a conceptual program in December 2005 and further reviewed and evaluated by the Oversight Committee in January 2006. Based on the Committee�s input and direction, the recommended $8.0M Schematic Design Program was submitted for Council consideration and received acceptance March 7, 2006. The Project Team has since completed the Design Development Program and is presenting this subsequent design phase effort herein for Council�s consideration and acceptance.

ANALYSIS

Building Program - The Design Development Program includes a new two-story, 13,597 square foot clubhouse[2], new surface parking facility for 70 vehicles, and ADA accessibility improvements across and along Walnut Avenue. Exhibit A identifies the overall site plan and landscape overlay plan. Exhibit B delineates the lower and upper clubhouse floor plans. Exhibit C portrays all exterior building elevations and their architectural style, including generally accepted exterior building finishes, materials, and colors. Exhibit D provides a section view of the proposed landscape buffer between the clubhouse west wall and Walnut Avenue.

It should be noted that the current 13,597 square foot program area is 822 square feet larger (6.4 percent) than the program presented to Council in March 2006. Although the increased program area will increase the total project cost, the cost remains capped at $8.0M. The program presented to Council via this report has been finalized and no other changes are expected. The increased program size (all added at the ground level), is directly attributable to three factors, including a modest increase for circulation, and is explained below:

The Oversight Committee agreed that the provision of these handicap restrooms represented a sensible convenience and improved the clubhouse�s functionality. In the Schematic Design (SD) Phase Program, only one storage area was designated and a portion of it was below the exterior stair. Storage space continues to be a subject of controversy where the argument is always made that there is never enough capacity with the counterpoint being the cost of space. The Oversight Committee also agreed that the additional storage space was necessary to accommodate the multiple clubhouse uses.

Finally, the space for mechanical and electrical equipment (including telephone, data, and security), was not substantially developed as part of the SD Phase design effort. As information and details were solidified, adequate, yet increased space was required to meet code clearance and accessibility requirements.

Building Program Summary - The table shown on the following page identifies where significant program changes occurred.[4]

Changes to the Upper Clubhouse Level - The Bar/Grille/Community Room increased 69 percent at the expense of comparable reduction to the Restrooms & Lounge Area. This flexible and open space area can be segregated or combined to accommodate various clubhouse functions and group sizes. The dramatic reduction to the Restroom & Lounge Areas reflects projected golf constituency needs and is more efficient and functional.

The Kitchen & Administration Area was significantly increased to provide a functional food preparation, storage, and operational support area commensurate with the Bar/Grille seating capacity and to provide an adequate food and beverage venue, including small and full size golf tournaments. The new kitchen is menu-driven, but by industry standards and comparison with other clubhouse kitchens, is considered on the small end of the scale.

At the Upper Level, there are no dedicated Storage and Equipment Areas (excluding kitchen operations) and very little common area circulation. A majority of this 508 s.f. is relegated to the thickness of the exterior walls (see Footnote 2) and conveys the high building efficiency.

Changes to the Lower Clubhouse Level � The Golf Cart Facility increased 36 percent and is a result of providing basic functional and operational space such as a maintenance and cart wash down area for 82 to 89 golf carts that have rotated use and are charged on a daily basis. The current 66 cart capacity creates logistical, storage, and charging challenges and does not reflect an efficient operation.

The new Pro Shop & Support Areas are virtually the same size as the existing Pro Shop. Separate handicap accessible men�s and women�s restrooms are being provided for improved golf patron access and convenience, they supplant the existing unisex restroom within the Pro Shop area.

The major increase to the Circulation/Storage/Equipment Areas is the result of dedicated storage since the efficient building design incorporates very little circulation. There is very limited storage capacity at this time and this space will be employed for both golf and concessionaire use. Mechanical, electrical, and utility rooms comprise a majority of the remaining space.

Clubhouse Setbacks � The DeBell Clubhouse is located on City property designated as �open space� and therefore does not have specific zoning criteria governing building setbacks from the street. The proposed clubhouse exterior walls will be set back approximately twenty-two (22) feet from face of curb along Walnut Avenue (40 feet from the street centerline) and forty-four (44) feet from face of curb along DeBell Drive (56 feet from street centerline). The current set backs from face of curb to the exterior building walls are 47 feet and 55 feet from Walnut Avenue and DeBell Drive, respectively.[5] This new building pad location will substantially improve the management and flow for golf cart staging and circulation and pedestrian access around the east side of the clubhouse.

CEQA and Development Review � Staff initiated the California Environmental Quality Act (CEQA) process and Development Review (D.R.) process through the Planning Division on June 26, 2006[6]. Based on preliminary discussions with the Planning Division and the nature and location of the Project, staff anticipates that a Negative Declaration for CEQA will be issued and that the D.R. process will be completed by the end of September 2006 with no unusual requirements or challenges to confront.

Parking Determination - A Parking Determination will be presented to the Planning Board for its consideration and approval on September 11, 2006. The Parking Determination intends to maximize the number of on-site parking spaces possible while meeting Burbank Municipal Code (BMC) requirements for irrigation and landscaping, circulation, and lighting. The current surface parking facility covers an area of approximately 33,000 square feet and provides a total of 85 parking spaces, five (5) of which are handicap spaces.

The current design layout includes 70 parking spaces, six (6) of which are handicap spaces. This net loss of fifteen parking spaces is a direct function of the parking lot�s irregular shape, increased aisle width requirements and parking space envelope, and the addition of required landscaping, medians, and light standards to meet BMC requirements.

In general, staff will recommend to the Planning Board that any parking space shortfall be absorbed along Walnut Avenue due to pre-existing site constraints and substantial off-site excess parking capacity currently exists. Given the unique location, difficult site constraints, and surrounding land uses, it is anticipated that this recommendation will not impose negative consequences to the surrounding area or neighborhood and that the Planning Board will adopt the planned parking program. A new access path to be constructed at the north end of the new clubhouse will also promote parking along Walnut Avenue since it will represent a convenient path of travel directly to the clubhouse.

Traffic & Transportation Committee � The new clubhouse will be constructed on substantially the same building site as the current clubhouse and will be located across the street from the new surface parking facility. Handicap accessibility and the path-of-travel from the parking facility to the new clubhouse represents an important project concern since the average slope of Walnut Avenue along the proposed crosswalk approximates eleven percent. Although not required by California State law[7], to accommodate handicap accessibility, a portion of the roadway on either side of the proposed crosswalk is planned to be reconstructed to provide a two percent cross fall. Challenging site constraints and pre-existing conditions preclude the provision of handicap parking immediately adjacent to the clubhouse and along DeBell Drive or Walnut Avenue.

Traffic counts were taken during the week of June 19, 2006 to evaluate if stop signs are warranted. The low traffic count supports a decision not to provide stops signs. However, to make the path of travel more pedestrian friendly, staff scheduled a September 14, 2006 hearing with the Traffic & Transportation Committee to request that three (3) stop signs be added to the T-intersection at Walnut Avenue and DeBell Drive � one at the southeast corner, one at the down-hill approach along Walnut Avenue, and one at the new driveway leaving the surface parking lot. Currently, there is a stop sign at DeBell Drive approaching this intersection from the easterly direction. In the event the Traffic & Transportation Committee denies this request, staff will bring the subject matter to the Council in a subsequent action for its consideration and final direction.

Temporary Facilities � During construction of the new clubhouse, alternative golf and concessionaire operations will be provided in an effort to maintain a positive experience for all customers using these facilities during this period. A detailed Temporary Facilities Plan is being collaboratively developed, will be refined during the Construction Documents Phase, and the plan and its final cost will be subject to Oversight Committee approval. Staff previously established a $150,000 plan allowance over a maximum period of fourteen (14) months.

General Contractor Pre-Qualification Process � Resolution Number 26,532 was passed and adopted July 22, 2003 to allow alternate project delivery methods, and more specifically, a Guaranteed Maximum Price (GMP) Project Delivery Method. In November 2003, several general contractors were short-listed to participate in a subsequent qualification process for GMP development.

More than 2-1/2 years later, market conditions and the anticipated construction cost for this Project have changed and warrant a new approach in securing a general contractor to complete the construction effort. Staff recommends that the traditional design-bid-build delivery method in lieu of the previously accepted GMP method be implemented since the anticipated construction cost is too low to support a GMP approach.

Staff also recommends that Council authorize a new pre-qualification process to secure general contractors for the bidding purposes due to this elapsed time period.

The Total Projected Project Cost is $8.0M and comprised of the following Program Elements, including each component cost as a percentage of the total Project Cost.

Although the construction industry continues to be extremely busy with limited labor resources, volatile material costs, and other market conditions that favor construction service providers, staff remains optimistic that the Program can be completed within $8.0M.

Schedule � Based on Council�s authorization to proceed with the Construction Documents Phase, completion of the following milestone activities is anticipated.

There is no fiscal impact if Council authorizes staff to proceed with completion of the Construction Documents Phase. The Golf Enterprise Fund has set aside $6.5 million for the DeBell Clubhouse Replacement Project. In addition, Resolution Number 27,189 passed and adopted on March 7, 2006, authorized a $1.5 million advance from the General Fund to the Golf Enterprise Fund to be repaid over a ten (10) year period with principal and interest payments commencing in January 2008.[9]

Through the period ending June 30, 2006, the project has expended approximately $289,100 for professional and design related services.

RECOMMENDATION

[1] The existing clubhouse is thirty-six (36) years old, was capitalized as of fiscal year end June 30, 1982 for a cost of $223,986, and had an established twenty (20) year economic life for accounting purposes.

[2] The 13,597 square foot clubhouse is a measurement of the interior enclosed space, including the thickness of the perimeter walls while the 5,122 s.f. and the 7,324 s.f. for the upper and lower floors respectively, are a measure of the interior space, excluding the exterior wall thickness. There is a difference of 1,151 square feet (viz. 13,597 � 5,122 � 7,324) between the Total Enclosed Gross Floor Area and the upper and lower floor measurements. This area difference represents the combined area of all exterior walls, the elevator, and portions of the two exterior stairs that encroach into the interior space.

[3] The Community Room can be combined with the Bar & Grill to increase capacity by another 24 to 28 table seating.

[4] Please note that the comparison is not exact since we don�t have access to accurate exterior building information short of performing actual field measurements. However, the comparison is close enough for discussion purposes with the existing clubhouse measurements assumed to be on the low side.

[5] The existing sidewalk along Walnut Avenue is four feet wide plus a 6� curb and will remain in place.

[6] The Planning Department formally accepted the Development Review application on June 29, 2006.

[7] The Design Team investigated and confirmed through the Department of State Architect in Sacramento, California, that there is no requirement to modify an existing public street with steep grade to provide handicap access across the street to meet normal ADA requirements and Title 24.

[8] The set aside for Art In Public Places (AIPP) is generally one percent (1.0%) of the construction cost. The 0.6% shown above represents the value of this program element as a percentage of the Total Project Cost, less the $50,000 set aside for AIPP. When costs related to hazardous materials abatement, agency permits and fees, temporary facilities, and various utility work is eliminated from the $5.9M construction budget, the $50,000 set aside for AIPP is very close to the 1.0% requirement.

[9] The interest rate is the Local Agency Investment Fund rate plus zero percent (0.00%) with an annual average principal and interest payment of approximately $189,568, based on a 4.5% start rate and caped at 6.0%.

Council Agenda - City of Burbank

Tuesday, July 25, 2006

PURPOSE

BACKGROUND

ANALYSIS

RECOMMENDATION