HomeMy WebLinkAbout1999-01-26; City Council; 15029; Cole Library Renovation AlternativesAB# I( 029
MTG. l/26/99
DEPT. LIB
P
CITY OF CARLSBAD -A&A BILL
TITLE- --
COLE LIBRARY RENOVATION ALTERNATIVES
CITY MGR-
RECOMMENDED ACTION:
Adopt Resolution No. $5 -3 5 accepting the Georoina Cole Library Feasibility Studv and
directing staff regarding alternatives available to the City for renovation of the Cole Library
facility.
ITEM EXPLANATION:
With the new Carlsbad City Library in South Carlsbad opening to the public next summer,
attention is now focused on alternatives for library services at the current main library site in
North Carlsbad. An important issue for the community, one which is highlighted in the city’s
1986 Strategic Plan and Space Needs Study, is the concept of equal access to library
resources for residents in both north and south Carlsbad.
On April 14, 1998, the City Council adopted Resolution No. 98-l 15, approving a consulting
agreement with the architect team of Cardwell-McGraw to undertake the Georgina Cole
Library Feasibility Study. The architect team conducted its evaluation of the existing Cole
Library facility, met with City Library staff, and consulted with the city’s library building
program consultant David Smith. This study is now complete and its findings and
recommendations have been reviewed by staff, architects, and the building consultant.
Four alternatives were developed in the study, all of which involve major construction and
renovation.
Alternative A:
This .alternative represents a limited first phase interior expansion of 6,328 square feet,
which will enable future expansion to meet the planned Building Program of 45,155 square
feet. Temporary relocation to a modular facility would be required during a year of
construction, as well as for the subsequent expansion. The scope of renovation work is
extensive, including demolition of all superstructure. The advantage of this alternative is a
lower initial cost. Disadvantages include the need to close the library for up to one year and
to provide basic services out of a temporary modular facility; deferring long term program
needs; and the cost of duplicating work in a future phase
Alternative B:
Renovates and expands the existing library to meet the planned Building Program of
45,155 square feet. The scope of work requires demolition of all superstructure and
temporary relocation of basic services during a design and construction period of up to two
years. This alternative does meet long term program requirements but at a higher initial
cost than Alternative A.
PAGE 2 OF AGEND:BILL NO. Is,02 9
Alternative C:
Recommends beginning work in 1999 on a new facility on city property directly east of the
current main library. This facility, programmed at 45,155 square feet, would take 2-3 years
to design and build and would accommodate Carlsbad’s projected build-out population.
During the time this new facility is under construction, the current main library would be
used as is, with minor shelving, carpet, and paint upgrades. The building would be closed
for only a short period of time and interim work would be handled by city facilities staff.
Once the new Cole Library opens, the old main library would be torn down and the space
used for additional parking. The advantages with this alternative are minimal interruption of
service, fewest constraints on site design and layouts, and less overall cost than with
Alternative B.
Alternative D:
Delays construction of a new or expanded facility until the need is triggered by the Growth
Management Plan. The Growth management standard for library space in Carlsbad is 0.8
square feet per capita. Once the new library opens, the city will have approximately 90,000
square feet of library space and will exceed the standard by approximately 30,000 square
feet. Carlsbad’s population will have to reach approximately 110,000 before the need for
additional space is triggered by the standard. In the meantime, the current main library,
which is now 31 years old, needs major structural, mechanical, and electrical upgrades.
These upgrades are needed to meet current building codes, life safety standards, and new
telecommunications infrastructure. The advantage of this alternative is that funds for basic
upgrades are in the current CIP budget. The disadvantages are a need for temporary
relocation of services during the 6-9 months of upgrade work and the deferral of long term
program needs.
Alternative C is the option recommended by the Feasibility Study and by staff. It recognizes
that a major expansion or rebuilding project will be required in 10 years and that there
would be significant cost efficiencies to starting the process this year.
FISCAL IMPACT:
The estimated construction costs for each alternative are as follows: Alternative A
($7,900,000), Alternative B ($11,700,000, Alternative C ($11,600,000), and Alternative D
($1,900,000). The CIP currently has $13,165,000 in CFD#l and PFF for Cole expansion in
the 2009-2020 build-out phase. These funds are adequate to build the new Cole facility if
work were to begin this year. Should the Council choose Alternative D and delay
construction until the need is triggered by Growth Management, the cost to complete basic
life safety and mechanical upgrades is approximately $1.9 million. The CIP has
$1,590,750 fo r remodel work in the 1999-2000 fiscal year. The cost to defer Alternative C
for another 10 years would add at least an additional $4 million to the project through
inflation alone.
It should also be noted that Proposition L, the county-wide %-cent sales tax initiative for
libraries, is scheduled for a special election on March 2, 1999. Should this initiative pass,
the library would receive an estimated $20 million over the five year life of the tax, beginning
PAGE 3 0FAGENi:BILL NO.
-
1 coZ9
July 1, 1999. These funds can be used for interim cash flow purposes and can also be
used to supplement, but not to replace, budgeted local funds. However, any additional
costs, such as staffing and other operating costs, for which funds have not already been
budgeted, would qualify for Proposition L money.
EXHIBITS:
1. Resolution No. 99-3 5 accepting the Georoina Cole Library Feasibilitv Studv
and directing staff regarding alternatives available to the City for renovation of the Cole
Library facility.
2. Georgina Cole Library Feasibility Study (Executive Summary).
RESOLUTION NO. 99-x
A RESOLUTION OF THE CITY OF CARLSBAD, CALIFORNIA,
ADOPTING THE GEORGINA COLE LIBRARY FEASIBILITY
STUDY AND DIRECTING STAFF REGARDING ALTERNATIVES
CONTAINED THEREIN
WHEREAS, the City Council of the City of Carlsbad, California, previously
adopted Resolution No. 98-l 15 approving an agreement with Cardwell - McGraw
6 Architects for the preparation of the Georoina Cole Librarv Feasibilitv Studv; and
7 WHEREAS, said report has been completed and its findings and
8 recommendations presented to the City Council; and
9 WHEREAS, the City Council hereby finds it necessary, desirable, and in the public
,0 interest to receive and adopt said study.
11 NOW, THEREFORE, BE IT RESOLVED by the City Council of the City of
12 Carlsbad, California, as follows:
1. That the above recitations are true and correct.
13 2. That the City Council does hereby formally adopt the Georqina Cole Library
l4 Feasibility Studv dated August 3, 1998, and directs staff to implement Alternative
15 and to prepare a financing plan and schedule to implement the selected
16 alternative.
17 PASSED, APPROVED AND ADOPTED at a regular meeting of the City Council of
18 the City of Carlsbad, California, at a regular meeting held on the day of
19 I 1999, by the following vote, to wit:
20
21
22
23
24
25
26
27
28
AYES:
NOES:
ABSENT:
CLAUDE A. LEWIS, Mayor
ATTEST:
ALETHA L. RAUTENKRANZ, City Clerk
(SAL)
- EXHIBIT #2
Georgina Cole Library
Feasibility Study
August 3, 1998
CardweluMcGraw ArcMtects
-
GEORGINA COLE LIBRARY FEASIBILITY STUDY
1. EXECUTIVE SUMMARY
Background: The Carlsbad Library Master Plan, completed in 1986, provides the
framework for implementation of the City of Cartsbad’s Growth Management
Standards for Library Services. The Growth Management Plan Standard for
libraries is 800 square feet per 1,000 population. According to Planning
Department analysis, maximum build-out to the Growth Management Plan Limit
would require 101,620 square feet of library space. The Library Master Plan calls
for the development of library resource centers in both the north and south areas of
the City to achieve geographical parity in access to resources.
The construction of the new Carlsbad City Library, scheduled for completion in
summer 1999, represents the first phase of this plan and will create 64,000 square
feet of library space, including central technical services and administrative
facilities for the two-library system.
The second step in the implementation of this plan involves renovation and addition
or new construction at the Georgina Cole Library site. An initial feasibility study for
the Georgina Cole Library site was prepared in 1990. That study defined the library
program and proposed alternatives for implementation in 1998. The purpose of the
current study is to update the building program and to look more closety at
alternative approaches to meeting the City of Carlsbad’s long term library service
needs at the Georgina Cole Library site.
Building Program: The Building Program developed by Consulting Librarian
David Smith and appended to this report provides. for a scope of public library
services at the Georgina Cole site commensurate with the public library services to
be provided at the new Carlsbad City Library. The building program reflects
current trends in planning for public libraries including:
l Increased space needs for information technology user stations and
related growth in published materials.
l Overall growth nationwide in use of computers, bookstores and
libraries.
l Libraries’ increasing role as civic destination points, and growth in
use by both young families and seniors.
l An overall trend in declining school library resources: K-12 students
are increasingly relying on public libraries to support their studies.
l Recent surveys indicate public priorities are larger print collections,
access to information technology, and improved library facilities.
In addition to the core library services the Cole Library buiiding program provides
for the City’s Genealogy and Local History collections, for the Adult Learning
Center and for Public Meeting and Conference Rooms. The building program
indicates that a facility of 45,155 square feet is required. Together with the new
64,000 square foot Carlsbad City Library this will meet the City’s Growth
Management Standards for library services.
Building Analysis: The existing library building was visited and construction
drawings reviewed by a project team of architects, structural, mechanical, and
electrical engineers. The findings are as follows:
.
The structural system requires substantial reinforcement to meet
current building code life safety standards.
The original mechanical system is still in place and incurs high
operating costs in terms of maintenance and system efficiency.
The building is not in conformance with current energy codes. It is
minimally insulated, also contributing to high operating costs.
The electrical system is at full capacity and will not allow for
increased loads.
The building lacks communications infrastructure to support current
and proposed library information networks.
The building does not have an automatic fire sprinkler system and
the fire protection system does not meet current code requirements.
Reinforcement of the existing structure requires additional shear
walls which impose constraints to the layout and efficient delivery of
library services.
Existing floor to floor and floor to roof heights are minimal in several
areas, and render the addition of new concealed ductwork and
sprinkler systems infeasible.
The extent of renovation required to allow for the implementation of the library
program is comprehensive. To provide a facility capable of meeting the library’s
operational requirements over a projected 30 year life span will require demolishing
the bulk of the existing structure and making limited use of existing slabs and
foundations.
While incremental steps of renovation may allow interim use of the existing facility,
this does not represent a feasible approach to meeting the building program.
Incremental renovation will incur substantial penalties of 1) duplication of
construction effort in subsequent phases, 2) repeated interruption of library
CardwellAlcGraw Architects
services for construction activity and associated relocation costs, 3) higher
construction costs and extended schedules associated with phased work, and 4)
the creation of an end product that does not allow the most effective provision of
library services.
The extent of renovation required to meet the City’s long term objectives indicates
that replacement of the building with new construction is a strongly competitive
option. This is borne out in the cost analysis which follows.
Site Analysis: The existing site is well located and is very visible. The extent of
City-owned lots allows sufficient site area to accommodate the building program
and required parking. A proposed facility of 45,155 square feet will require 226
parking spaces at the City’s ratio of 1 space per 200 square feet of library.
Preparation for library site development should address the following:
l Consolidate adjacent City owned legal parcels and make General
Plan amendments to consolidate the R-P-Q zoning.
l Construct cut-de-sacs at Laguna Drive and Elmwood Street and
vacate existing right-of-way at the Carlsbad Village Drive driveway.
l Relocate utilities main lines on the site remaining from the previous
vacation of Elmwood Street.
l Relocate the structure housing the Carlsbad Arts Office.to an
adjacent lot or find an alternative location for this function.
Project Alternatives and Cost Analysis: Three site development approaches
meeting the goal of constructing the library program on this site are analyzed, as
well as an interim improvements alternative.
Project Budgets for each Alternative are presented by cost consultant Construction
Analysts Incorporated. Estimates are based on engineers’ reports, site plan
drawings, and construction specifications similar to those used for the Carlsbad
City Library currently under construction. Off-site work for street improvements
and utilities relocation are included as a separate line item. Related project costs
including library furnishings and equipment, testing, permit and design fees,
owner’s management costs, public art program, and owner’s project contingency
are included. Construction costs are escalated to reflect a July, 1999 bid date.
l Alternative A: Renovation for Future Expansion (30,680 Square Feet). This
alternative represents a limited first phase of 30,680 square feet which will
enable future expansion of approximately 15,000 square feet to meet the
building program. The anticipated final configuration of the site after future
CamhvelhfcGraw Architects
3
addition would be similar to Alternative B. Alternative A requires temporary
relocation for construction, and also for the subsequent addition. The scope of
renovation work is extensive, including demolition of all superstructure down to
the level of existing slabs and foundations. The future addition will remove and
reconfigure some of this work at the point of connection.
Total Project Budget: $7.9 M
l Alternative 8: Renovation and Addition to meet the Building Program
(45,755 Square Feet). This alternative requires temporary relocation of the
library during construction. The scope of renovation work includes demolition of
all superstructure down to the level of existing slabs and foundations. The
costs of this work are equal to that of new construction, and additional costs
are incurred for temporary relocation.
Total Project Budget: $7 7.9 M
l Alternative C: New Construction to meet the Building Program (45,755 Square
Feet). This alternative has the advantages of minimal interruption of library
operations and the fewest constraints to the site design and layout of the
library. The project can be phased to create interim parking and access to the
existing library during construction. Demolition of the existing building and
remaining site improvements occur as a final phase.
Total Project Budget: $11.6 M
l AIternative D: interim improvements (24,352 Square Feet). This akernative
will address the following in order of priority as far as the existing 1998-1999
and 1999-2000 Capital Improvement Projects budget of $1.6 million allows:
1) highest priority life safety improvements, 2) reallocation of staff and public
meeting spaces, and 3) minor improvements to building finishes. This
alternative represents a ‘holding action’ approach to defer the major program
improvements outlined in this study. The improvements will require
temporary closure of the library and will be demolished in the course of future
library expansion or replacement.
Total Project Budget: $7.6 M
Recommendations
Library Site Development:
l Consolidate adjacent parcels into a single parcel for Library use.
l Subdivide the existing parcel between the Library and City Hall.
l Amend the General Plan for R-P-Q zoning on the entire Library site.
l Vacate the right-of-way spur at Carlsbad Village Drive and vacate
the right-of-way at the comer of Laguna Drive and Elmwood Street.
CardwelvMcGmw Architects
4
-
Implementing the library Master Plan:
l Construct off-site improvements including cut-de-sacs at Laguna
Drive and Elmwood Street. Relocate existing utilities and the
Carlsbad Arts Office to prepare for library site development.
l Construct a new library structure to meet the full program
(Alternative C) adjacent to the existing library, allowing uninterrupted
operations in the existing building until the time of move-in.
l Phase the new construction to create parking and access to the
library during construction, and to demolinh the existing building and
complete site improvements after move-in.
CanhveMlcGmw Architects
5
II. LIBRARY PROGRAM SUMMARY
Planning Background
The Georgina Cole Library has served as the City of Carlsbad’s primary location
for library resources for the last 31 years. The construction of the new Carlsbad
City Library, scheduled for completion in summer 1999, implements the first step of
a library services plan which addresses the City of Cartsbad’s Growth Management
Standards for Library Services. The Library’s Master Plan, completed in 1986,
calls for the development of library resource centers in both the north and south
areas of the City to achieve parity in access to resources. The second step in the
implementation of this plan involves renovation and addition or construction of new
faciiiiics at the Georgina Cole Library site. A feasibility study for the Georgina Cole
Library site was prepared in 1990 and defined the library program and alternatives
for projected implementation in 1998. The purpose of the current study is to
reassess the building program and to analyze alternative approaches to meeting
the City of Cartsbad’s long term library service needs at the Georgina Cole Library
site.
The Library Trends and Library Program Summary were developed by Consulting
Librarian David Smith in team with the Carlsbad City Libraries staff. Interpretation
of the Growth Management Plan was provided by the Carlsbad Planning
Department. The entire Program Document is appended to this report.
Growth Management Requirements
The Growth Management Plan standard for library construction as amended by the
City Council on April 22, 1997 reads: “800 square feet per 1,000 population must
be scheduled for construction within a five year period or prior to construction of
6,250 dwelling units, beginning at the time the need is first identified.” The library
floor area demand generated from this standard as calculated by the Planning
Department is as follows:
July 1, 1998 Population: 60,000 Square Feet
Build-out (SANDAG 1998 estimate): 92,960 Square Feet
Build-out (Growth Management Plan Limit): 101,620 Square Feet
Neither SANDAG nor the City of Carlsbad has adopted population growth forecasts
more recent than the SANDAG Series 7 forecasts based upon 1985 assumptions.
SANDAG is currently preparing a Series 9 2020 Forecast. A Planning Department
analysis of build-out estimates is appended to this report.
CanfweWhfcGraw Architects
6
Public Library Trends
Over recent years a number of trends have been noted in both local and national
studies which must be taken into account in planning for new public library
facilities.
1.
2.
3.
4.
5.
The impact of information technology on public library space has resulted in
substantial increases in square footage needed over space planning formulas
in general use just a decade ago.
l Computer technology has allowed for an unprecedented increase in the
publication of materials.
l Electronic databases which reduce the amount of space required for
‘hard storage’ require substantially more space for user access -
whereas a number of individuals can access a print set of an
encyclopedia, only one person per computer station can access the
same database reference tool.
There is a high correlation between computer ownership, purchase of books
and other materials, and library use. These activities serve to complement and
enhance one another: mega-bookstores and libraries are growing and
flourishing side by side.
Public libraries are “destination points” for many people seeking a place to
spend their time productively in a safe and hospitable environment.. In many
communities the library has becbme a major social, informational and
recreational center for all age groups. Use both by young families and mature
citizens is increasing.
School library resources are in a serious decline - collections, trained staff and
adequate space. Students, particularly K-12, are relying more heavily on the
public library for both print and non-print materials to support their studies.
Recent public surveys conducted on both a local and national basis find that
the library user’s highest priorities are for improved, larger collections of print
materials, access to computers, other new technologies and improved larger
library buildings.
These trends have been taken into account in the updating of the library building
program requirements for the Cole Library, and point to a library size larger than
that required by the Growth Management Standard. The provision of adequate
library space and a functional, flexible layout will permit the new or expanded Cole
CardweWMcGmw Architects
7
-
Library to respond satisfactorily to the needs of the northern residents of the City of
Carlsbad, both now and well into the future.
Summary of Existing and Proposed Library System Resources
Georgina Cole Library (existing): 24,352 Square Feet
Centro (existing) 900 Square Feet
Adult Learning Program (existing) 1,359 Square Feet
Carlsbad City Library (summer 1999): 64,000 Square Feet
Georgina Cole Library* (proposed): 45,155 Square Feet
(*Note: replaces both the existing Cole Library and the Adult Learning Program)
Summary of Program Areas
The Building Program totals 45,155 square feet including a 200 square foot Police
Department Office, and will require 226 parking spaces at the City’s ratio of one
space per 200 square feet of library space. The following table summarizes
program areas and capacities.
Library-Related Public Areas
Public Entrance/Lobby
Friends Book Sales Area
Meeting and Conference Rooms
Square Feet
unassigned
100
1,850
Library Public Areas
Circulation Services
Children’s Services
Young Adult Area
Copy Center - Public
Reference Services
Magazines/Newspapers
Popular Browsing/Paperbacks
Public Shelving - Adult
Public Seating - Adult
Computer Lab
Adult Learning Program
Genealogy and Local History
1,735
4,370
565
300
2,435
875
225
7,105
1,720
320
3,055
6,230
CardweluMcGraw Archrtects
8
Staff Areas
Administrative Staff Offices
Staff Facilities
Delivery/Mail/Copying
Non-public Shelving/Storage
Maintenance
750
500
650
700
230
Total Assigned Area (ASF) 33,715
Total Unassigned Area (25%) 11,240
Total Library Area (GSF) 44,955
Police Department Office 200
Total Building Area (GSF) 45,155
Program Layout Diagram
The Building Program recommends that all library public services with the
exception of independently staffed areas such as Genealogy and Local History and
the Adult Learning Center be located on one floor level for most effective staffing.
The total area of these functions on the main level is approximately 32,000 square
feet. This means that roughly 13,000 gross square feet will be the maximum
desired on the second level. This space should be in one contiguous area for
staffing and flexibility in use over time.
The program layout diagram indicates the relative size and preferred adjacency of
the primary elements of the building program. The diagram indicates the desired
zoning of the program by floor level and with respect to public access. This
diagram defines the basic areas used in the analysis of alternatives in this report.
CamiwaMkGraw Architects
9
SERVICE l
STAFF CHILDREN’S
-- +-----t-----t----------
REFeI,E”PE ;=
---t-----t- ---+----+----
SHELVING 8 SEATING
+ + + + I / MTGIFRIENDS
Geor@na Cole Ubrary
cabtalcaah Fkmaim6W m-3
LEVEL 2
Program Dlagram
Q AlQusl3,1998 '
I I I 1
oaooo 120
Ill. ANALYSIS OF EXISTING FACILITY
Code Analysis
Construction Type and Occupancy Group: The building construction type would
be best classified as Type Ii-Non Rated under the current code. (Title 24 1995
California Building Code). The first level has an area of 16,280 Gross Square Feet
(GSF) inclusive of the enclosed outdoor reading court. The second level totals
8,072 GSF, for a total of 24,352 GSF. Library use is typically classified as a Group
B occupancy. Meeting rooms within the library housing less than 300 occupants
are classified as a Group A-3 occupancy, and typically total less than 10% of the
total area. The allowable area for the Type II-N construction type given a Group B
occupancy and allowances for two stones and 40’ separation from other structures
on all sides is 48,000 square feet.
An automatic fire sprinkler system is not required if the building is less than 48,000
GSF but it is recommended for library occupancies for the protection of building
contents.
Exiting: The second level areas each have two exits as required, however the exit
stairways do not conform to current standards and do not provide areas of refuge
for evacuation assistance as required.
Accessibility: Public toilet rooms have been remodeled to meet the requirements
of Title 24 and the ADA. Vertical circulation including stairs and elevators do not
conform to current standards and will require replacement.
Program Analysis
Column Grid and Shear Walls: The building has a 25x40’ column grid which
allows a fair degree of flexibility for library layout. For planning new facilities a grid
in the range of 3O’x35’ is recommended for greatest flexibility and space efficiency
in laying out shelving and seating to ADA standards. Shear walls were located in
response to the initial library functions and now limit the ability to open up
contiguous spaces.
Floor to Floor Height: The existing floor to floor height and floor to roof heights
severely constrain the ability to renovate or add to this building. Existing floor to
floor heights are 10’ at the south end and 13’ at the north end. Existing floor to roof
heights are 9’ at the south end and 11’ at the north end. This results in ceiling
heights of 7’-6” and 8’ in some areas. This is inadequate for public library areas.
Ceiling heights will be further reduced by the need for additional structural
CaniweWMcGrew Architects
10
supports. larger ductwork to meet current ventilation and duct insulation
requirements, and the addition of a fire sprinkler system.
Recommended floor to floor height for a new multistory library is 14’ to 15’. This
will accommodate building systems and allow a ceiling height of 9’-6” to 10’ as
recommended for visibility, lighting and air distribution in large spaces.
Second floor Areas: The second floor of the existing library is composed of two
separate areas with no connection between. The 4,400 square foot north
mezzanine is 13’ above the first floor slab, the 3,000 sqrlare foot south staff work
area is 10’ above the first floor slab. The isolation of these relatively small areas
limits their potential use. Currently the north mezzanine contains the Genealogy
collection which has dedicated staff but is constrained by the available space. The
building does not allow for consolidation of the upper floor areas due to the
differing structural heights.
Building Envelope Analysis
The Library building was constructed in 1966 to the plans of architect Robert
Melvin. The design is derivative of late International Style institutional architecture
as manifested by practitioners such as Edward Durrel Stone and Minoru Yamasaki.
The building is lightly decorated with tile fascias and masonry screen walls.
Expansive glazing and a well maintained landscape contribute to an integration of
interior and exterior environments.
Thermal Assemblies: The construction drawings indicate 2” rigid roof insulation
(R-6) but do not indicate insulation at exterior wall assemblies of concrete masonry
units (R-l to 1 S) and at exterior wall assemblies of steel studs with exterior stucco
and interior portland cement plaster (R-l to 4). These values are fairly typical for
the date of construction and represent a significant addition to operating costs.
Glazing: The glazing indicated on the construction drawings varies from 316” to
3/16” depending on the opening sizes. Several of the openings are very large. All
glazing is single pane and is neither tinted nor filmed for reduction of heat gain.
The glass does not appear to be tempered as would be required by current codes
given the existing opening sizes. It is strongly recommended that the existing
glazing strength be identified and replaced or reinforced as necessary in future
maintenance or renovation of the building.
Roof Membrane: The roof membrane is an aggregate-ballasted multi-ply built-up
roof installed in approximately 1983. It has been repaired intermittently since then.
There are no apparent leakage problems currently but the installation is
approaching the limit of its expected life cycle.
CardweWMcGmw Architects
11
_,--- \ / 4 1 ix \ .,- 1’
-
Structural System
The letter from Blaylock Engineering Group attached in the Appendices describes
the updated structural analysis of the existing building. The structural analysis
expands upon the following key points:
Current seismic force level requirements are 38% higher than the force
levels required in the code in effect (1966 UBC) when the building was
constructed.
Current code lateral force levels greatly exceed the capacity of the
cantilever column system at the raised roof areas.
The north mezzanine floor diaphragm and system of seismic collector
beams and drag connections is inadequate by current standards.
Existing concrete block shear walls are inadequately reinforced and
have inadequate diaphragm drag connections.
Existing non-structural masonry screen elements represent a falling
hazard in a seismic event and require additional bracing and
repair/replacement of rusted framing elements.
Thin cantilevered-slab edges around the perimeter of the building
require repair or removal.
Existing exit stair railings require repair or replacement due to corrosion.
Structural improvements to bring the existing upper floor and roof
structure into compliance with current codes necessitate doubling the
amount of existing shear walls.
The library has long operated with reduced shelving in the upper floor areas due to
limitations in dead load recommended previously for these areas. Full renovation
of the building to current code standards for library use on two floor levels will be
most economically accomplished through the demolition and reconstruction of
virtually all superstructure, including roof, mezzanines and masonry shear walls.
New second floor loads and areas can be designed to avoid conflict with existing
footings which may be undersized for the increased loads. Re-use of shear wall
footings is possible, but is not recommended as it may constrain the library layout
significantly. A full renovation may save between 33% and 50% of the cost of
foundations and slab on grade for a new structure.
HVAC, Plumbing and Fire Protection Systems
The mechanical systems report provided by Sevier Siskowic Engineers is attached
in the Appendices. The report can be summarized as follows:
CamlwellAkGraw Architects
12
With the exception of the cooling tower, all of the primary components of the
building Heating, Ventilating and Air Conditioning system are, over 30 years old and
have exceeded their useful life by industry standards. The existing cooling tower
has a useful life of approximately 10 years, which is less than the planning horizon
of the current project. The system was not designed to current standards of
energy efficiency and is no longer performing at peak efficiency. The operation of
the building incurs substantial costs in energy usage and ongoing maintenance.
Building plumbing is in satisfactory condition. Existing domestic water, sewer and
gas service supply lines are located immediately to the east of the building and will
require protection/relocation during construction. Resizing of these service lines
may be required by expansion of the program areas.
There is no fire suppression (automatic sprinkler) system in the building. The
building contains a heat detector fire alarm system. There is no fan shut-down
capability in case of fire. The system requires a new fire alarm control panel to
meet current codes. An automatic sprinkler system may not be required by code
but is recommended for the purposes of life safety and protection of library
materials. A dry pipe system may be considered for areas containing irreplaceable
or extremely rare materials. The existing building does not afford locations or
adequate ceiling clearances for a concealed sprinkler piping system.
Power, Lighting and Communications Systems
The electrical systems report provided by Van Buuren Kimper & Associates
Engineers is included in the Appendices to this report. The findings of the report
can be summarized as follows:
The electrical service feeder is not adequate to support any future building
expansion or modification. The existing transformer appears to be undersized for
the existing building service.
The main electrical room does not meet current SDG&E design standards and
requires work to relocate utilities including water piping, fire alarm panel, and
telephone/data panels. The main switchboard does not have the capacity to
support expansion. Existing panel boards are not suitable for future building
expansion or renovation.
The energy expended to maintain current lighting levels exceeds the current Title
24 lighting energy allowance of 1.5 watts per square foot by more than 300%
(existing lighting is 5 watts per square foot). The lighting system does not take
advantage of conservation methods such as daylighting, occupancy sensors, multi-
level switching and time control.
CardwedlMcGraw Architects
73
Exterior lighting should be removed and replaced with new energy efficient
luminaires capable of providing an average illumination level of 0.5 foot candles.
Existing telephone and data systems need a separate entrance room and a
building-wide system of cable management to support current library technology
and to allow for future modification. Currently, expansion of library information
networks is limited by the lack of communications infrastructure such as cable tray
and under-floor cable access.
A new fire alarm system is recommended for the existing building to conform with
national codes, the ADA, and City of Carlsbad Fire Marshal criteria.
Summary of Renovation Potential
The extent of renovation required to allow for the implementation of the library
program in this building is comprehensive. Full renovation with this objective in
mind requires demolishing the bulk of the existing structure and making limited use
of existing slabs and foundations.
Incremental steps of renovation may allow for interim use of the facility but do not
achieve the City’s program objectives in a cost-effective or service-oriented
manner. Incremental renovation will incur substantial penalties of 1) duplication of
construction effort in subsequent phases, 2) repeated interruption of library
services for construction activity and related costs of temporary facilities, 3) higher
construction costs associated with phased work, and 4) the creation of an end
product that does not allow the most effective provision of library services.
The potential steps of incremental renovation are interrelated but can be grouped
into three general categories as follows:
l Minimum Requirements for interim Use: A minimum scope of work for
continued short term use of the building should include lateral
reinforcement -of the existing structure as necessary to meet current life
safety standards, and safety improvements to exit railings, glazing and
screen walls.
l Building Systems Upgrades: To reduce escalating operating and
maintenance costs and to improve building function and comfort for
continued use, replacement of the HVAC and electrical systems and
installation of an automatic sprinkler system are needed.
C~rdweMfcGraw Architects
14
l Provision for Program Objectives: The scope of building systems
expenditures begs the question of aligning these improvements with the
long-term planning for library services - i.e. all major building systems
may be renewed but no significant provision for future growth will have
been made. Meeting the library’s long term program needs and
creating the potential for future addition requires major structural
reconfiguration to eliminate the constraints of shear walls and existing
floor to floor heights.
Alternatives A and B described in this report assume a comprehensive renovation
approach accomplishing all of the above to meet the long term program goals of
the City of Carlsbad.
Alternative D described in this report encompasses only the minor improvements
necessary to facilitate continued interim operation of the facility and assumes that
these improvements will be demolished or replaced in future implementation of
Alternatives A, B, or C.
Cidw&McGmw Architects
15 1 f-1, [i ‘,
‘! 3 1
/
IV. SITE ANALYSIS
Extent of City Owned Property
The Library and the City Hall are located on a single legal parcel. The library
parking area occupies the two parcels immediately to the east. The city owns the
parcel immediately adjacent to the north of the parking lot. These parcels provide
adequate site area for library construction and parking, if the alignment of the
corner of Laguna Drive and Elmwood Street can be adjusted to obtain greater site
width. The city owns several parcels on the opposite side of Laguna Drive. These
are used for the Carlsbad Arts Office and for a neighborhood gardens program.
Lot Consolidation and Subdivision
Redevelopment of the City property for the Library may require consolidation of the
four contiguous city parcels into one legal parcel. In addition, it may be desirable
to subdivide the single parcel which contains both the Library and City Hall, so that
the Library becomes the sole use on a single parcel at the conclusion of the
project.
Topography
The Library sits at the top of a steep terrace 15’ above the City Hall site with a
finish floor elevation of approximately 123’. The Library parking area slopes uphill
22’ to the east property line which has an elevation of 145’. The rate of elevation
gain increases as one moves east, from a slope of 1:40 adjacent to the Library
increasing to 1: 15 at the eastern property line. Carlsbad Village Drive continues to
ramp up to the east, making site access difficult from the east end of the site.
Adjacent Land Uses
The City Hall complex lies immediately to the west. The library adjoins public rights
of way to both the north and south. The library parking area is bounded by
residential properties to the north and the east. The City Hall is adjacent to the
Interstate 5 on-ramp, and the site is linked to Carlsbad Village to the west of the
freeway by Carlsbad Village Drive. The Library site marks a transition point from
these commercial and institutional areas to the primarily residential areas to the
east.
Planning, Zoning and Entitlement Requirements
The existing Library and parking lot are located on lots zoned R-P-Q (Residential -
CanhvelWcGmw Architects
16 , .-, ;” ,,o‘i 2. ’
Professional - Qualifying). The “Qualifying” overlay indicates that Planning
Commission approval of development is required on these lots. Library use is
permitted outright in this zone. Through lots (i.e. street frontage on opposite sides
of the lot) are treated as having two front yards of required 20’ width. Development
standards for the R-P-Q zone are:
Front Setback: 20’
Side Setback: 10% of lot width, min. S, max. 10’
Rear Setback: Twice the side setback, max. 20’
Bldg. Height: 35’
Bldg. Lot Coverage: 60%
The City-owned lot immediately north of the parking lot is zoned R-l-10000. The
24’ height limit in this zone would preclude two-story above grade development for
the library on this lot. due to the need for 15’ floor to floor height. The library and
related parking is a conditional use and would require application for a Conditional
Use Permit and associated reviews. Alternatively, application for change of the
General Plan zoning to reflect the consolidated parcel boundaries may be made.
Development standards for the R-l -10000 zone are:
Front Setback:
Side Setback:
Rear Setback:
Bldg. Height:
Bldg. Lot Coverage:
20’
10% of lot width, min. 5’, max. 10’
Twice the side setback. max. 20’
30’. (24’ if roof is sloped less than 3:12)
40%
The City-owned lots on the north side of Laguna Drive are zoned R-l. These lots
are not proposed for library use.
Surnrna~~ of Project Reviews: Entitlement for library site development will require
Parcel Map changes for lot consolidation (Administrative Decision), street right-of-
way vacation (City Council approval), and General Plan Amendment for zoning
change at the consolidated parcel (City Council approval at quarterly meeting). The
General Plan Amendment will also require a Local Coastal Program Amendment to
Land Use. Coastal Commission action is required once it is acted on by the City.
A negative Environmental Declaration is anticipated.
Site Access
Library parking is accessible from Carlsbad Village Drive. The Library service
entrance is accessible from Carlsbad Village Drive with a separate curb cut to the
dock area. Future development of the site should maintain public access from
Carlsbad Village Drive to minimize impacts on Laguna Drive and Elmwood Street,
CardweWMcGraw Architects
17 ,. ---,
> , ’ ; d /
these are both local streets. The existing service access location should be
abandoned due to backing and turning difficulty at Carlsbad Village Drive. Service
access may be best accommodated from Laguna Drive adjacent to the City Hall
parking lots, or alternatively from the public parking area.
Parking
The City of Carlsbad parking requirement for libraries is one space per 200 square
feet of building area. The library currently has 97 parking spaces located in the lot
immediately to the east. By the current standard the existing library (24,600 SF)
needs 26 additional spaces to meet the required 123 spaces.
Realignment of the Laguna Drive/Ejmwood Street intersection
The realignment of the Laguna Drive/Elmwood Street intersection is desirable to
remove the ‘bottleneck’ in the center of the library site. This narrowing occurs
immediately to the east of the existing structure in the area which is most favorable
for addition or new construction due to its relatively flat topography snd the
minimization of impacts to residential neighbors. The realigned intersection would
cut into the corner lot currently occupied by the Carisbad Arts Office. After review
of street realignment alternatives, it is clear that the termination of Laguna Drive
and Elmwood Street in cul-de-sacs meeting City Engineering Services criteria is
the most feasible approach to facilitating site development.
Street Improvements at Laguna Drive
Laguna Drive is currently a 40’ wide unimproved (lacking curbs, gutter, sidewalks)
right of way. Redevelopment of the City property will require street improvements
including an expanded 56’ right of way and installation of curbs, gutters and
sidewalks to City standards.
Vacation of Right of Way spur at Carlsbad Village Drive
At the west Library parking lot entrance the Carlsbad Village Drive right-of-way
contains a spur which aligns with Elmwood Street to the north. This appears to be
ileft over’ from a previous vacation of Elmwood Street. This spur encumbers the
site in a similar fashion to the Laguna Drive/Elmwood Street intersection and it is
desirable to vacate this small area as well. This spur occurs in the most favorable
site location for addition or new construction and will have an effect on the
calculation of yard setbacks, which will constrain the building footprint substantially.
CardwetMkGraw Architects
18 ,, ,.H--
> I > “)) ?’ &..f ,!/
Relocation of utilities
Relocation of water, gas and sewer mains, which bisect the site, is required under
several different development scenarios. These mains align with Elmwood Street
and connect to mains located in Carlsbad Village Drive. Relocation will be required
a) for the realignment of the Laguna Drive/Elmwood St. intersection, b) for addition
to the existing building footprint (Alternative B) and c) for new construction in the
most favorable site location (Alternative C). Relocation of the gas main should be
coordinated with SDG&E. Existing overhead power lines at Laguna Drive and
Elmwood Street should be relocated underground in this area as well.
Relocation of Carlsbad Arts OiYke Structure
Relocation of the Carlsbad Arts Office will be necessary to accomplish the Laguna
Drive/Elmwood Street realignment. The structure is a converted single story slab-
on-grade dwelling. The structure could be relocated to one of the adjacent city-
owned parcels and its use maintained. There is a signiftcant.benefit to the
adjacency of the Arts Office and the Library, particularly if jointly beneficial
developments such as a sculpture court can be accomplished in the site plan.
Relocation of the existing structure is included in the cost analysis as a baseline.
Further project planning should include a more detailed feasibility study of
alternatives for the Arts Office. These might include creating space within the
library building or providing a new structure on-site more amenable to Arts Office
programs than the relocated house structure.
CardweW%fcGraw Architects
19 I” !’ -3 r, / $:;I c’
V. ALTERNATIVE PLANNING CONCEPTS
Alternative A: Renovation for Future Expansion: 30,6&O SF
Alternative A provides a baseline for comparison to the alternatives which meet the
City’s long term requirements. The intent of Alternative A is to facilitate the future
implementation of the full program by comprehensively reconstructing the existing
structure and building systems in the short term, to allow for future addition. The
proposed improvements provide for a long term service life for the renewed facility.
This alternative includes construction of a full second floor with a floor to floor
height of 15’, and construction of a new roof structure with a floor to roof height of
15’. The resulting split of functions onto the two floors does not optimize the
program, but provides the maximum usable space in the interim.
First Floor Renovation: 16,280 GSF
New Second Floor: 14.400 GSF
Total GSF. 30,680 GSF
Alternative A also includes replacement of all major building systems and site
development to accommodate parking for 154 cars. Alternative A can be
accomplished without the proposed realignment of Laguna Drive/Elmwood Street.
Alternative A requires temporary relocation of the library during the construction
period.
Advantages/Disadvantages:
+ Reduces first cost
- Temporary relocation required now and in future
- Future cost of duplication of work in future phase
- Defers long term program needs
- Least flexibility for library operations
Alternative 8: Renovation and Addition to Meet Program: 45,155 SF
Alternative B meets the requirements of the Building Program for the long term
service needs of the Cansbad City Libraries through a combination of renovation
and new construction. This Alternative includes the demolition of the existing roof
and second floor structures and new construction as follows:
Renovated first floor area:
Additional area at first floor:
Additional area at second floor:
Total GSF per Building Program:
16,280 GSF
15,720 GSF
13.155 GSF
45,155 GSF
CardweMlcGraw Architects
20
Alternative B includes site development to create parking for 226 cars, and will
require the realignment of Laguna Drive/Elmwood Street to accomplish this.
Alternative B requires temporary relocation of the library during the construction
period.
Advantages/Disadvantages:
+ Meets long term program requirements
- Higher first costs than Alt. A
- Temporary relocation required during construction
- Costs more than Alt. C and has additional design constraints
Alternative C: New Construction to Meet Program: 45,755 SF
Alternative C meets the requirements of the Building Program for the long term
service needs of the Carkbad City Libraries through new construction. This
alternative allows the existing facility to remain open during the construction period.
New construction at first floor: 32,000 GSF
New construction at second floor: 13.155 GSF
Total GSF per Building Program: 45,155 GSF
Alternative C includes site development to create parking for 226 cars,-and will
require the realignment of Laguna Drive/Elmwood Street to accomplish this.
Alternative C can be phased to allow for development of parking and access to the
existing library during construction.
Advantages/Disadvantages:
+ Meets long term building program requirements
+ No temporary relocation required
+ Most flexibility in site and building design
+ Similar cost to Alt. B, but increased flexibility
- Higher first costs than Alt. A
Alternative D: Interim Improvements: 24,352 SF
Alternative D addresses the following in order of priotity as far as the existing 1998-
7 999 and 1999-2000 Capital improvements Allocations allow: 1) highest priority
life safety improvements, 2) reallocation of staff and public meeting spaces, and 3)
minor finishes improvements. ”
Interim lmorovements to Existinq:
Total GSF:
24,352 GSF
24,352 GSF
CardwelUhfcGraw Architects
21
Alternative D does not include site improvements.
Alternative D does not facilitate future improvements to the building.
Advantages/Disadvantages:
+ Allows continued use of existing building in the short term
+ Funds are currently in CIP budget
- Library service interruption required now and in future
- Future cost of duplication of work in future phase
- Defers long term program needs
CedwellAkGrsw Architects
22
VI. COST ANALYSIS
Cost Analysis of Alternatives A, B, and C was prepared by Construction Analysts.
Inc. based on project drawings and descriptions. Costs for new work reflect the
specifications employed at the Carlsbad City Library currently under construction.
The scope of renovation work in Alternatives A and B reflect the analysis of the
existing structure prepared by the architects and engineers and assumes
substantial demolition of the existing structure with partial re-use of slab and
foundations as described in this report.
Costs for off-site work are itemized including the termination of Laguna Drive and
Elmwood Street in cul-de-sacs, the relocation of the Carlsbad Arts Office, and the
relocation of utilities mains on the library site to avoid the building area.
Construction costs are escalated to a July, 1999 bid date. Additional ‘soft’ project
costs are budgeted based on the City’s experience at the Carlsbad City Library.
Current estimates for library furnishings and equipment.
The Project Budget for Alternative D (Interim Improvements) was not estimated
based on scope of work but reflects the sum of the Capital Improvement Projects
budgets already allocated for 1998-99: $349,750 and 1999-2000: $1,241,000.
Cardwet~cGmw Architects
23 ,-.
j ff I, * 1 ,s ,A!
-
Project Budgets for Alternatives A, B, C, D
Gross Square Feet
ALT. A B ALT. ALT. C ALT. D
30,680 45,155 45,155 24,352
Building Construction and Sitework
(Construction Cost/SF)
Off-site Work
Subtotal Construction Cost
$3,838,500 36.203.394 $6,192,557 $1,141,135
$125.11 $137.38 $737.14 $46.86
$487,612 8487,612 $487,612 $0
$4,326,112 $6691.006 $6,680,169
Other Ptojfkt Costs:
Arch/EngTTesting Fees (15% of Const. Cost)
Owner’s Proj. Management (5% of Coast. Cost)
Owner’s Contingency (15% of Const. Cost)
Library Furnishings and Equipment ($48/SF)
1% for Public Art
Coordination of Art Project
Post Occupancy Outfitting (2% of Const. Cost)
Utilities Design, Connection (2% of Const. Cost)
Library Temporary Relocation (Allowance)
Mitigation of Hazardous Materials (Allowance)
$648,917
$216,306
$648,917
$1.472640
Q&3,261
$43.261
$86.522
$86,522
$250,000
- $50,000
$1.003,651
$334,550
S1.003.651
$2.167.440
$66,910
$66,910
3133,820
5133.820
5250,000
350,000
$1,002,025
$X&t,008
$1,002.025
$2.167.440
$66,802
$66,802
0 133,603
$133,603
$0
$50.000
$1.141.135
$171,170
$57,057
$171,170
$0
$0
$0
$0
$0
$0
$50,000
Subtotal Other Project Costs: $3.546346 t5.210.752 $4.956,309 $449,397
Total Project Budget: $79872.458 $11.901,758 $11.636.478 $1590.532
CardwWUMcGmw Architects
24 ,, *‘--x !! ‘!
‘2.‘ 4
J’
VII. RECOMMENDATIONS
Library Site Development:
l Consolidate adjacent parcels into a single parcel for Library use.
l Subdivide the existing parcel between the,Library and City Hail.
rn Amend the General Plan for R-P-Q zoning on the entire Library site.
l Vacate the right-of-way spur at Carlsbad Village Drive and vacate
the right-of-way at comer of Laguna Drive and Elmwood Street.
Implementing the Library Master Plan:
l Construct off-site improvements including cul-de-sacs at Laguna
Drive and Elmwood Street. Relocate existing utilities mains and the
Carlsbad Arts Office to prepare for library site development.
l Construct a new library structure to meet the full program
(Alternative C) adjacent to the existing library, allowing uninterrupted
operations in the existing building until the time of move-in.
l Phase the new construction to create parking and access to the
library during construction, and to demolish the existing building and
complete site improvements after move-in.
CardwefUMcGmw Architects
25 I; : 5 “1 “! ,_.*
VIII. PROJECT DRAWINGS
Site Analysis:
Existing Buildings, Boundaries, Parking and Land Use
Existing Utilities and Topography
Proposed Off-Site Work
Site Development Alternatives:
Alternative A: Renovation for Future Expansion
Alternative 5: Renovation and Addition
Alternative C: New Construction
Alternative D: Interim Improvements
CardwelyMcGraw Architects
26 I”\ j
;,; ,’
-p==-==-y--J --p-+\,:j- I 1- -i----mp 1 \I =;, ,$ E: ;,
I --
I
,,,*,:\ ,=<,$I 3 . - /
_ .., i J.i > i\
‘* l’r- UK \ F..‘j/’ /zL\$?,\ ,./I 1 -l i; U P i/ 1, : w: / \ \ -\ ii \
4&l ~ \ . ‘i ‘“--;!, ;,!-,./--,/
x--v
* y$.$
P ’ ,; \‘.:iQ, ;,
‘\
, /’ /‘ ‘\
\, Y /,$ ‘-J /,Y#i \ \
‘-y-- @F=- \, A; --/,,,qY
?.?/ . 1 4 *:\ :( /
bP g ;” =a p-j =Q SL =B 2
P$ 3 j I
3”Ql i.’
“4 ., a ‘; :ul /
d I
do 1
;
21 I - 0 7 . . \ ----i 1% :-‘! --- i I-L ! }’ --- ! hrl-- -
I I. 1,.
! I. I
3
h-1, --
I fy.a-=-
’ ,y
10 :dJ
J ‘- !7 ‘D 1
‘Q I >a, .- lu) ’ Id 6 ,v
b
/
-2,
I I /
- -- :P> CL --o- -c- zi - -,.,
,,v 1 zzz -i --- h---c-4h-q _
\uJ ,z ‘a: ID \uJ I(3 :4J
\
A ! -
\7 ‘D I 16 Ia Icn \ ‘-I :a I 9 \
F
*- i , Lo-, - - - ‘-U3
?EI
;> $--- c .
-- a‘6c-
Lr
‘j+ :z <--+--+ 3 ,‘p-- ,a-
- ~,, -, ---o. -, -.-: -, ---a ”
s - e L LQ sj 1 -.$ 0 .T= Q (L dD 1
--p\-‘- “-\il\ I ‘i’, Fy..- /A-u
--j----
I= g ‘\j ;I
i _.._ ., “J ;,I