HomeMy WebLinkAbout2024-10-14 Study Sessionrt. Council Study Session Meeting Agenda
ASHLAND CITY COUNCIL
STUDY SESSION AGENDA
Monday, October 14, 2024
Council Chambers, 1175 E Main Street
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5:30 p.m. Study Session
1. PUBLIC FORUM
15 minutes — Public input or comment on City business not included on the agenda
Community Center and Pioneer Hall Construction Update
a. Community Center and Pioneer Hall Construction Update
III. ADJOURNMENT
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meeting, please contact the City Manager's office at 541.488.6002 (TTY phone number 1.800.735.2900).
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City website, ashlandorecion.Qov,
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Council Study Session
October 14, 2024
Agenda Item Community Center and Pioneer Hall Update
Sabrina Cotta City Manager
From Scott Fleury PE Public Works Director
Brandon Goldman Community Development Director
Contact scott.fleury(a)ashiandoreQon.gov Sabrina. CottaCa)-ashlandoregon.gov
Item Type I Requested by Council ® Update 0 Request for Direction ❑ Presentation ❑ 1
SUMMARY
Before the Council is an update on the Community Center and Pioneer Hall construction improvements
previously authorized by the City Council. Outlier construction has completed asbestos mitigation and major
demolition for both facilities to date. They have also completed a majority of the structural improvements to
Pioneer Hall. Public Works staff in conjunction with City Management and Outlier construction have paused
next steps for the Community Center due to additional discovered serious structural deficiencies found
during the initial demolition phase for the structure. This staff report covers the additional deficiencies and
associated options for moving forward along with their opinions of cost.
POLICIES, PLANS & GOALS SUPPORTED
CEAP Goals:
Strategy BE-2. Encourage increased building energy efficiency and conservation.
Strategy BE-3. Maximize efficiency of City facilities, equipment & operations.
Strategy BE-5. Prepare and adapt buildings for a changing climate.
Department Goals:
• Maintain existing infrastructure to meet regulatory requirements and minimize life -cycle costs
• Deliver timely life cycle capital improvement projects
• Maintain and improve infrastructure that enhances the economic vitality of the community
• Evaluate all city infrastructure regarding planning management and financial resources
BACKGROUND AND ADDITIONAL INFORMATION
The Ashland Community Center, located at 59 Winburn Way, was closed to public access in 2019 after a
structural investigation revealed significant life -safety risks. Constructed in 1922 and listed on the
National Register of Historic Places, the building suffers from severe structural deficiencies, including the
risk of total collapse if additional outward deflection of the exterior walls occur.
The initial structural investigation performed in 2019 by Marquess & Associates, identified several concerns,
including:
Excessive deflection in the roof and walls, especially at the west end of the Main Hall.
Outward deflection of the north wall, which poses a risk of total collapse.
Insufficient support for structural members, contributing to additional safety risks.
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Since 2019, the City has undertaken significant efforts to generate a plan to resolve the known structural
deficiencies of the buildings and improve Americans with Disabilities (ADA) access. This effort culminated
with approval of a construction contract with Outlier Construction to resolve the structural deficiencies and
improve ADA access.
During the demolition phase additional structural deficiencies were found in both the Community Center and
Pioneer Hall buildings. These deficiencies were not immediately visible during the initial analysis and design
phases. They do however provide serious concerns to the City, ZCS Engineering and Outlier construction
about the appropriate path forward for resolution. These additional issues if improved to current standard
using modem building techniques would significantly escalate the cost and complexity of the restoration to
the Community Center. Mitigation for Pioneer Hall's additional structural issues is more straightforward and
can be covered with the existing contingency funds within the construction contract.
The newly uncovered problems include further compromised structural members and greater instability in
the building's framework, requiring even more extensive work to bring the building up to code and re-
establish a significant useful life for the structure.
Staff and Outlier Construction agreed to pause the construction phase and allow time to develop solutions
to the newly found structural issues. In early September Outlier Construction, ZCS Engineering and City
staff met to discuss options moving forward.
Additional Community Center structural deficiencies:
The structural design in place was intended to bring the structural framing up to current standards. After
demolition and asbestos abatement was completed, Outlier discovered evidence of foundation
settling, inadequate sub -floor framing (notched and partial joists), inconsistentlinadequate framing
attachments, and evidence of severe water intrusion
The result of these conditions are out of level flooring conditions throughout the building (+/-) 2 %z",
exterior walls (both stem walls and foundation walls), that are out of plumb upwards of 4", and a building
that is left vulnerable to water intrusion issues.
To fully resolve these issues, the building would need to be stabilized, leveled, gutted of all interior wall
finishes, shored, exterior walls jacked plumb, and a variety of framing work to relieve the ceiling/roof
structure as the building is leveled/jacked. Once complete, all finishes, electrical, and doors/hardware
would need to be replaced. The final casework, door installation and final finishes would be new, but not
represent an appearance of new construction because of the stabilization efforts for the structure.
Additional Pioneer Hall structural deficiencies:
The structural design in place is adequate in substantially reinforcing the sub -structure, and roof
framing. During demolition Outlier discovered that the framed floor (West of the Meeting Hall)
is out of level in several areas upwards of 2 1/4". This makes framing, flooring, casework, doors, and
other finishes not only difficult to install, but visually and functionally impractical.
Demolition and abatement are complete as of now, and the structural framing for the roof/ceiling and
sub -floor are complete. The issues that remain unresolved are water damage to sub -floor framing,
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and the need to level the framed floor section west of the Meeting Hall. To resolve these items, the
foundation needs to be stabilized to stop further settling, and then the floor sheeting needs to be
replaced and a self -leveler applied to flatten the floor. Once complete, construction can resume as
contracted.
Staff has authorized Outlier to move forward with the structural modifications to Pioneer Hall at an
additional cost of $95k. This will fully mitigate all issues for the structure and will allow it to be utilized
to its full potential once the remainder of construction activities for the facility are completed.
With respect to the Community Center improvement the rehabilitation effort costing is driving up the
overall price of improvement to be substantially similar to construction of a new facility. A brand-new
facility would have improved functionality and overall performance including significantly improved
energy efficiencies.
Community Center Options:
Continue with rehabilitation of the Community Center with additional structural improvements.
a. A RamJack helical pier system will stabilize the foundation, while increased footings will
enhance the load -bearing capacity. Rat slabs would be poured to support shoring of the
building and interior adjustable post bases would be installed to level the middle of the
building. The loads will transfer to the roof which will then require relief cuts to be made, and
several framing members, and finishes will need to be repaired after the foundation repairs
occur. The exterior walls will need to be shored and jacked plumb which will involve
engineering, structural support posts, and eco-blocks. One side of all walls will have to be
demolished for electrical access, insulation will have to be replaced, and all doors will
replaced.
b. Additional change orders would need to be negotiated between Outlier and the City to repair
the roof structure and replace finishes, doors and electrical after the foundation and floor
repairs are completed.
2. Demolish the Community Center and build a brand-new similar structure
Demolition and Reconstruction Process:
In 2019, following the Marquess & Associates report, the City of Ashland's Building Official, Steven
Matiaco, made a formal determination that the Ashland Community Center qualified as a "Dangerous
Building" under AMC 15.04.210. This determination was based on the report's findings that the building's
structural condition was unacceptable, with a risk of total collapse if further outward deflection occurred. As
such, the criteria for demolition under AMC 15.04 has already been met.
According to AMC 15.04.210, a dangerous building can be demolished without requiring a separate
demolition permit if it endangers public safety. Given the 2019 determination and the building's current
state, the City is authorized to proceed with the demolition of the structure.
Given the substantial safety concerns and costing for rehabilitation versus new construction, City staff
recommends the following actions:
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Hold a public hearing: The State Historic Preservation Office (SHPO) requires a public hearing
procedure when considering the demolition of a building that is individually listed on the
National Register of Historic Places. The purpose of this process is to ensure that due
consideration is given to the historical significance of the structure and to provide an opportunity
for public input before any irreversible decisions, such as demolition, are made.
o Key objectives of the SHPO public hearing process include:
• Public Awareness and Participation: Engaging the community and interested
stakeholders in discussions about the proposed demolition, allowing them to
express concerns, support, or alternatives.
• Historical Review: Allowing SHPO, the public, and preservation advocates to
assess whether alternatives to demolition exist (e.g., restoration or adaptive reuse)
that could preserve the historical value of the structure.
• Compliance with Preservation Standards: Ensuring that any demolition or
modification complies with state and federal preservation laws aimed at
protecting historical resources.
• The SHPO required public hearing process under Goal 5 of the State land use
system is part of a broader effort to protect historic structures and is designed to
make certain that demolition is truly the last resort after exploring all other
preservation options. If demolition is approved following the public hearing, it
signifies that the benefits of removing the structure (due to safety or financial
considerations, for example) outweigh the loss of its historical significance.
• Demolish the building and clear the site
o Over the counter building permit required to ensure utilities are capped off appropriately.
Design and permit a replacement building that is substantially similar in design to the original
structure but meets modern building codes, including:
o Full compliance with ADA accessibility standards.
o Enhanced energy efficiency and insulation.
o Installation of fire sprinkler systems and other safety features.
o Improved planning setbacks and zoning compliance.
o Increased occupancy classification to serve a wider range of community needs.
The Ashland Community Center is located in the R-1-7.5 (Single Family Residential) zone, where public
parks and recreational facilities are an outright permitted use. The existing use of the Community Center as a
"Parks, Open Space & Recreational Facility" is allowed without the need for special permits. However, the
building itself is considered a non -conforming structure due to its proximity to the front property line. The
building's existing front setback is approximately 18 feet, while the current zoning code requires a minimum
setback of 20 feet. As a result, if the building were to be reconstructed on the same footprint, it would require
a Conditional Use Permit (CUP) under Ashland's land use code, which would necessitate a Planning Action
review. This process could take between 48 to 120 days from the submission of a complete application.
Alternatively, if the building is redesigned with the front fagade set back by an additional 2-3 feet, the non-
conforming setback issue would be resolved. This would allow the reconstruction to proceed with only the
necessary building permits, avoiding the CUP process entirely. Additionally, setting the building back would
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accommodate an improved accessible ramp entrance, making the building more accessible and compliant
with ADA standards.
The new building could be designed to be substantially similar to the existing structure, preserving the
historic character of the Community Center while ensuring that it meets modem safety and accessibility
standards. A plaque on site acknowledging that the replacement building is designed to reflect the historic
structure would elevate confusion as to its age and historic status.
While the Ashland Community Center holds historic significance, its current structural condition presents an
unacceptable safety risk. The 2019 determination by the Building Official confirmed that the building met
the criteria for a "dangerous building" under AMC 15.04, authorizing its demolition.
Since 2019, the City undertook efforts to restore and rehabilitate the building to meet current safety
standards. However, during the renovation work, the exposure of structural elements revealed greater
structural deficiencies than were previously known. These additional issues, which were not fully identified
in the original evaluation, significantly escalate the cost and complexity of the restoration project. The newly
uncovered problems include further compromised structural members and greater instability in the building's
framework, requiring even more extensive work to bring the building up to code.
As a result, the costs associated with the necessary repairs have escalated to be comparable, if not in excess,
of the cost of constructing a new building. This includes the need for significant additional structural
reinforcements, accessibility improvements, and modernization of safety systems like fire sprinklers and
insulation. Given the scale of these challenges, continuing with renovation would not only incur substantial
costs but would also result in a building that retains many of the inherent limitations of an older structure.
Therefore, City staff finds that demolition and new construction is the most prudent and cost-effective course
of action. This approach will allow for the construction of a new building that:
• Preserves the historic design and character of the original Community Center.
• Complies fully with modem building codes and accessibility standards.
• Ensures the long-term safety and functionality of the facility.
• Provides improved energy efficiency and enhanced safety features like fire sprinklers.
By pursuing this path, the City can ensure that the community is served by a modem, safe, and efficient
facility, while also honoring the historic aesthetic of the original structure.
FISCAL IMPACTS
Original contract amount with Outlier Construction is $1,722,490 for rehabilitation of both structures, of
which $250k was set aside for contingency tasks. As of August 2024, $214,800 has been paid for
construction activities on the project.
The City previously negotiated the first change order for additional asbestos mitigation at a cost of
$13,740.67 which came out of the contingency amount.
The City has negotiated at change order with Outlier for additional structural work in Pioneer Hall at a cost
of $95,992, which will also come from the contingency line.
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Estimated structural changes for the Community Center to stabilize the foundation and replace
doors/hardware and update electrical is estimated at $381,483. Additional future costs for framing and finish
repairs due to floor stabilization are estimated between $95,000 and $150,000.
fable 1: Budget
Construction Budget Spent to Date Remaining
$1,722,490 $214,800 $1,507,690
Cotingency Change Orders Remaining
$ 250,000 $ 109,732 $ 140,268
dditional Structural Funds Required (Community Center; Total
S 381,483 $ 531,483 (high side)
Plus approximate) 95-150K
Estimated cost of construction for a new Community Center (like for like) is approximately $1.4-1.5 million
outside of design or permit fees.
DISCUSSION QUESTIONS
Does the Council have any questions about the information presented within the staff report, or from the site
visit of the facility?
SUGGESTED NEXT STEPS
Next steps include moving forward with the demolition of the Community Center following the process
outlined above and finishing the recommended improvements to Pioneer Hall.
REFERENCES & ATTACHMENTS
Attachment #1: Outlier Updated Construction Schedule
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Pak 3
Page 10 of 10
Alissa Kolodzinski
From: noreply@civicplus.com
Sent: Monday, October 14, 2024 9:49 AM
To: Ashland City Recorder
Subject: Online Form Submittal: City Council Public Testimony Form
[EXTERNAL SENDER]
City Council Public Testimony Form
Public Testimony
This form provides the opportunity for citizens to submit public testimony for Council
meetings. Testimony will be accepted for both general public forum items and
agenda items. This form must be submitted by 10 am the day of the meeting.
Written testimonies submitted by the deadline will be available to the Mayor and
City Council before the meeting.
All public testimony will be included in the meeting minutes.
Full Name
Meeting Date
Email Address
Indicate if you want to
provide written
testimony, or if you want
to speak via Zoom.
Indicate if you would
Like to speak during
Public Forum or for an
agenda item.
Phyllis Wetzel
Oct. 14 2023
Wetzelphyllis2@gmail.com
Written
Agenda Item
Written Testimony
Good evening Counil members
(Leave this section
I am unable to.attend this evenings meeting so I am offering
blank if you are
this written request.
requesting to speak
I have lived in Ashland for 50 years, and as such, I have seen
electronically.)
many local meeting places come and go. Non as essential to
our sense of Community than our Community Center. I am
certain you are aware of its being on the National registry of
historical buildings, and its rich history (including the birth of
1
Lithia Park and many other historical events). For years it has
been the HUB of Ashland community gatherings. I have been
to folk dancing, birthday parties, Peace Choir talent shows, my
own sons wedding reception, potlucks sponsored by many
different organizations, ashland garden club events, and many
other gatherings. It is part if the fabric of the Ashland
Community. It is a meeting place ordinary citizens have been
able to utilize for family, friends and organizational events.
Community is the strongest part of Ashland life. It would be a
tragedy to not do whatever it takes to refurbish or rebuild this
important, historical meeting center. Please find a way to keep
this vibrant, essential part of our community alive. It is certainly
more important than expensive trash cans with no recycling
recptacles. Sorry, just had to get that one off my chest. Thank
you for all you do. I enjoyed the candidates forum yesterday
and appreciate your hard work and love of the Ashland
community.
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Council Study Session - October 14, 2024
Community Center and Pioneer Hall Update
Honorable Mayor and City Council Members
My name is Dale Shostrom. I have been a Designer/Builder in Ashland since
1974, specializing in higher -end residential, and historic building restoration. I
have been a member of the Historic Preservation Advisory Commission for
the last 26 years. The following are my own comments and do not necessarily
represent the views of other HPAC members.
Initially, I was very disappointed that the Study Session narrative did not
emphasize the historic significance of these Landmark buildings in Lithia
Park ... It is not just about the money and budget! Furthermore, the idea to
replicate the existing Community Center building if it were to be demolished
is not appropriate in my opinion and should not be considered because the
historic Community Center building, and its existing character and historical
significance will be buried in the landfill and forgotten.
have made multiple site visits since the Community Center's closure in
2019. 1 have been accompanied with Public Works staff, Marquess and
Associates, ZCS, and Joyce Ward (1987 project architect). Most recently and
since the work stoppage, I have met twice with Michael May from Public
Works who is overseeing the project. The second visit included Michael
Morris, former city councilor, building contractor and engineer.
Despite my familiarity with the Community Center and the construction
drawings, I found the Study Session narrative often confusing in describing
the existing conditions, newly uncovered problems, possible technical
solutions, and construction budgeting. I was then concerned that it must also
be difficult for the Mayor and Council to have a clear understanding of the
construction issues involved in their decision -making process.
My obvious goal and focus is to save the Community Center from demolition.
I suggest there could be a bridge between the City Council and the
construction and design team of ZCS and Outlier. This collaboration could
take the form of an Ad -Hoc committee to help the Council be better informed
with the addition of local expertise to help guide the process. Mike Morris,
myself, and possibly others, could meet with the construction team to
discuss the current problems and possible solutions with the goal to stay
within a reasonable budget. Additionally, involving more citizens in the
process will help to build confidence in the community while confronting
these somewhat shocking new revelations.
Other Observations:
Regarding the Community Center, I think the statement, structural
deficiencies including the risks of total collapse if additional outward
deflection of the north exterior wall occurs" is overemphasized and
unnecessarily alarming to the public. It does need to be addressed, but
based on our observations last Friday, we (Michael May and Mike Morris)
concluded the existing outward deflection" of the north wall is probably
unchanged since the 1940s or `50s after the initial deflection and sag of the
poorly designed roof trusses. It also turns out that the 1987 tie rod
installation was so poorly installed is has not added any safety factor at all.
Conclusion: wood buildings are incredibly resilient and flexible because of
the gradual strengthening of multiple members, connections, and materials
that act in unison.
Additionally, I also do not concur with the evaluation that these 100 yr. old
wood framed buildings should or need to have level floors. In doing so,
jacking a building to make it level creates all sorts of increased costs and
problems, especially movement to the existing wall and ceiling finishes
composed of fragile lathe and plaster. Additionally, and in our experience,
the floors could be stabilized at their present level and augmented with
additional support where structural framing and foundation deficiencies are
now present. Floor slopes of 2 inches over longer distances is not perceived
by occupants. The gradual slope can be easily addressed when installing
finish details such as doors, trim, and cabinets.
Thank you for your consideration on these matters.
SPEAKER REQUEST FORM
Submit this form to the meeting Secretary prior
to the discussion item.
1)You will be called forward when it is your turn to speak
2) State your name and speak clearly into the microphone
3) Limit your comments to the time allotted
4) Provide any written materials to the meeting Secretary
5) Speakers are solely responsible for the content of their statement
Date:
I�
C
Name: (Please Print)
Ashland Resident:
],YES NO City:
Agenda Topic/Item Number:
Public Forum Topic (Non -agenda Item):
Please respect the order of proceedings and strictly follow the
directions of the presiding officer. Behavior or actions which are loud
or disruptive are disrespectful and offenders will be requested to leave.
Disclaimer: By submitting this request to address the Public Body, I
agree that I will refrain from the use of any obscene, vulgar, or
profane language. I understand that if I do not follow procedure my
speaking time may be terminated, and I may be requested to sit down
or leave the building.
SPEAKER REQUEST FORM
ratSubmit this form to the meeting Secretary prior
to the discussion item.
1)You will be called forward when it is your turn to speak
2) State your name and speak clearly into the microphone
3) Limit your comments to the time allotted
4) Provide any written materials to the meeting Secretary
5) Speakers are solely responsible for the content of their statement
Date:
fty[
Name: (Please rint) '" r
-C�a �m �A ;
Ashl9Kd Resident:
EnrYES NO City:
Agenda Topic/Item Number:
Public Forum Topic (N -agenda Item):
Please respect the order of proceedings and strictly follow the
directions of the presiding officer. Behavior or actions which are loud
or disruptive are disrespectful and offenders will be requested to leave.
Disclaimer: By submitting this request to address the Public Body, I
agree that I will refrain from the use of any obscene, vulgar, or
profane language. I understand that if I do not follow procedure my
speaking time may be terminated, and I may be requested to sit down
or leave the building.
y_ SPEAKER REQUEST FORM
Submit this form to the meeting Secretary prior
to the discussion item.
1)You will be called forward when it is your turn to speak
2) State your name and speak clearly into the microphone
3) Limit your comments to the time allotted
4) Provide any written materials to the meeting Secretary
5) Speakers are solely responsible for the content of their statement
Date:
Name: (Please Print)
Ashland Resident:
IYES NO City:
Agenda Topic/Item Number:
C41 q. om. pwok lhw"l
Public Forum Topic (Non -agenda Item):
Please respect the order of proceedings and strictly follow the
directions of the presiding officer. Behavior or actions which are loud
or disruptive are disrespectful and offenders will be requested to leave.
Disclaimer: By submitting this request to address the Public Body, I
agree that I will refrain from the use of any obscene, vulgar, or
profane language. I understand that if I do not follow procedure my
speaking time may be terminated, and I may be requested to sit down
or leave the building.
A SPEAKER REQUEST FORM
Submit this form to the meeting Secretary prior
to the discussion item.
1)You will be called forward when it is your turn to speak
2) State your name and speak clearly into the microphone
3) Limit your comments to the time allotted
4) Provide any written materials to the meeting Secretary
5) Speakers are solely responsible for the content of their statement
Date:
Name: (Please Print)
Ashland Resident:
91 YES NO City:
Agenda Topic/Item Number:
Public Forum Topic (Non -agenda Item):
Please respect the order of proceedings and strictly follow the
directions of the presiding officer. Behavior or actions which are loud
or disruptive are disrespectful and offenders will be requested to leave.
Disclaimer: By submitting this request to address the Public Body, I
agree that I will refrain from the use of any obscene, vulgar, or
profane language. I understand that if I do not follow procedure my
speaking time may be terminated, and I may be requested to sit down
or leave the building.
D(' d n o`k
SPEAKER REQUEST FORM
IralSubmit this form to the meeting Secretary prior
to the discussion item.
1)You will be called forward when it is your turn to speak
2) State your name and speak clearly into the microphone
3) Limit your comments to the time allotted
4) Provide any written materials to the meeting Secretary
5) Speakers are solely responsible for the content of their statement
Date:
I1
Name: (Please Print)
�MBS��- ROO �Q
Ashland Resident:
n YES NO City:
Agenda Topic/Item Number:
Public Forum Topic (Non -agenda Item):
r
Please respect the order of proceedings and strictly follow the
directions of the presiding officer. Behavior or actions which are loud
or disruptive are disrespectful and offenders will be requested to leave.
Disclaimer: By submitting this request to address the Public Body, I
agree that I will refrain from the.use of any obscene, vulgar, or
profane language. I understand that if I do not follow procedure my
speaking time may be terminated, and I may be requested to sit down
or leave the building.