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CITY OF GLENDALE, CALIFORNIA
REPORT TO THE CITY COUNCIL
AGENDA ITEM
Report: Contract Amendment with SWA in the amount of $900,765 for Additional Design Services for the Preservation and Reuse of City Owned Property Located at the Former Rockhaven Sanitarium – 2713 Honolulu Avenue (APNs: 5610-024-900 thru 910) (Contract #8001911)
1.Motion to authorize contract amendment with SWA by $900,765 for new not-to- exceed amount of $1,050,765 to provide Additional Design Services for the Rockhaven Project.
2. Motion directing staff on preferred next steps regarding the preservation and reuse of the former Rockhaven Sanitarium located at 2713 Honolulu Avenue.
COUNCIL ACTION
Item Type: Action Item
Approved for February 27, 2024 calendar
EXECUTIVE SUMMARY
The Rockhaven site was acquired by the City in April 2008. There have been three attempts since 2014 to partner with private entities to develop the site; the last effort ended in early 2020. In June 2021, State Senator Anthony Portantino announced an $8.0M State grant to preserve Rockhaven that mandated a museum. After completing numerous prerequisites, the State grant was approved in March 2023. Enhanced roof tarping protecting the buildings and replacement of the Pines Cottage roof were completed in May 2023. SWA was retained in October 2022 for design and master planning services and subsequently completed preliminary design investigations and a refined scope of work focusing on the Pines Cottage renovation for a museum, improving the Rockhaven historic grounds, and off-site parking options. A change order will be required to fund the SWA contract for the next steps in Rockhaven’s redevelopment including design, construction document preparation, bidding documentation and construction administration.
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RECOMMENDATION
Approve the contract amendment with SWA to include additional design services at Rockhaven and provide direction regarding the proposed reduced scope focusing on renovation of the Pines Cottage, grounds improvements, and off-site parking.
BACKGROUND
The Rockhaven Sanitarium is a 3.4-acre site with 15 buildings totaling approximately 22,000 SF located at 2713 Honolulu Avenue. The former women’s sanitarium was acquired by the City in April 2008 and later listed on the National Registry of Historic Places in 2016. Rockhaven has remained largely vacant since it was acquired by the City and has been in ad-hoc mothballing lacking more permanent safeguards. There have been three attempts since 2014 to develop the property with private entities that would preserve the buildings and park-like setting. The last effort concluded in January 2020 when Avalon Investments terminated their Exclusive Negotiating Agreement (ENA) with City citing the financial infeasibility of their proposed boutique hotel conversion of the site.
After termination of the Avalon ENA, staff received unsolicited inquiries from interested parties to redevelop the site. To better assess Rockhaven’s condition, in July 2021 an assessment of the site’s historic buildings was completed to determine the cost to address deferred maintenance that had occurred with the site’s continued vacancy. While the assessment was being prepared, on June 29, 2021, State Senator Anthony Portantino announced an $8.0M State grant to “renovate and preserve the historic Rockhaven property for the public to enjoy and appreciate as a museum.” Announcement of the State grant provided a boost to the City’s efforts to preserve Rockhaven and consider alternatives that were otherwise fiscally infeasible. In October 2021, staff presented the assessment and provided various options to reuse Rockhaven. The City Council directed staff to explore the feasibility of reusing Rockhaven as a park with commercial opportunities and a museum, in addition to investigating the relocation of the Montrose Library branch, as well as explore affordable housing on the vacant portion of the site.
In May 2022 a site analysis was presented to the City Council. Staff looked at the feasibility of two Montrose library relocation options onto the site: (i) new construction and (ii) rehabilitation of select buildings with new construction to address ADA and grade issues.
The cost of relocating the library ranged from $11.9M to $13.5M far exceeding the value of the State Grant. In addition, staff identified the Pines Cottage as most suitable for a museum location. The vacant areas located on Rockhaven’s western and southern edges were identified as potentially supporting new affordable housing, and supportive housing within the existing buildings was identified as an option as well. The City Council directed staff to move forward with additional studies necessary to stabilize the buildings, improve 3{{section.number}}1
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the grounds, open the museum, address parking, conduct outreach, and conduct feasibility analysis of a library and/or affordable housing on the site.
Roof Replacement
The July 2021 assessment determined most building deterioration could be traced to faulty roofs, rain gutters and exterior drainage. Staff proposed replacing all roofing systems for the historic buildings with new like-for-like roofs following Secretary of Interior Standards. In November 2021 the City Council approved dispensing with the public bidding and authorized solicitation of competitive bids to replace the roofs.
In preparing the bid specifications, staff determined future structural improvements would likely undermine the new roofs. In August 2022, staff presented three options to safeguard the buildings from rain intrusion: (i) full roof replacement, (ii) temporary roofing system (while preserving the tiles for later), and (iii) the installation of a heavy-duty tarp system.
The City Council opted with roof replacement for the Pines Cottage building only, and the tarping system for the other buildings.
Request for Quotes were released in September 2022 for the tarping and roof replacement. In October 2022, staff deemed the bids to be excessively high. Further, materials testing completed for the Pines Cottage roof determined extensive use of asbestos materials rendering the tiles unsalvageable. The scope of work was revised into three projects (demolition and abatement of the Pines Cottage roof; installation of the new Pines Cottage roof; installation of the tarp system). Request for Quotes for the asbestos abatement was released on November 3, 2022, and for the roof replacement and tarping systems on December 14, 2022. Contracts for the various work items were awarded in mid-January 2023. The tarping system installation, asbestos abatement and roof replacement stated in mid-April 2023 with all work completed by the end of May 2023.
Status of State Grant
As noted, the State grant was announced on June 29, 2021. The Senator’s office indicated flexibility in the fund’s use and that the $8.0M was not intended solely for a museum but to preserve Rockhaven inclusive of a museum integrated into the site.
The grant was contingent on various prerequisites being met prior to the disbursement of funds. The grant required a Project Information Package (“PIP”) containing a project summary, an authorizing City resolution accepting the grant, cost estimates, schedule, and CEQA review. Further, the grant is reimbursement based and requires an executed agreement between the City and State.
In October 2021, the City Council directed finalization of the grant agreement. Due to the PIP requirement, staff could not move forward until a project scope was identified. On 4{{section.number}}1
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May 3, 2022, the City Council approved the project scope enabling staff to complete CEQA review and related items for submission to the State. On August 23, 2022, the City Council authorized the execution of the State grant and appropriated $8.0M towards the Rockhaven project, and on August 24, 2023, the City filed a Notice of Exemption finding the project to be categorically exempt from environment review (CEQA Guidelines §§ 15301 & 15331).
The PIP was submitted to the State on September 1, 2022; the first review by the State was completed January 12, 2023. Additional information and clarification were requested which was provided by staff. On March 22, 2023, the grant agreement was fully executed.
Per the terms of the agreement the project must be completed by March 1, 2026.
ANALYSIS
Given the technical complexity and wide-ranging design and engineering services needed to move forward with Rockhaven’s reuse, in October 2022 the City entered into a professional services agreement with the SWA Group. The contract covers the full array of services including Site Planning, Master Planning, Landscape Master Plan and Maintenance Guidelines, Concept Design, Schematic Design, Design Development, Construction Documentation, Construction Observation, Bidding Process, Implementation, Permitting, Community Engagement and ADA Compliance services.
SWA completed a preliminary investigation of the site that included a site analysis and inventory, and a potential long-term programming strategy. Given the limited funds beyond the State grant, staff worked with SWA to develop a narrower scope of work that could be completed with the State grant allocation and not require additional funding.
In July 2023, SWA prepared a revised scope of work (Exhibit 1) that focused on three primary objectives: (1) renovation of the Pines Cottage for a museum; (2) renovation of the historic portion of the Rockhaven grounds (focused on landscape and pathway improvements); and (3) feasibility of off-site parking improvements around the site. With the enhanced tarping completed, the strategy is to maintain the existing buildings in place and focus on the three objectives that would permit the Rockhaven grounds to be re- opened to the public until a long-term operational plan and funding strategy can be developed. The reduced scope includes the following improvements:
1) Restore historic gardens and courtyards.
2) Develop outdoor picnic and seating areas for public use. 3) Improve ADA accessible pedestrian circulation. Provide new walkways, ramps and stairs necessary for site access.
4) Re-stripe parking along Honolulu Avenue.
5) Provide parking along Pleasure Way and Hermosa Avenue. 5{{section.number}}1
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6) Assess and improve site drainage.
7) Remove and replace existing landscaping with Water-wise planting throughout the project area.
8) Replace irrigation system to improve water efficiency. 9) Improve perimeter fencing and site access.
10) Provide site lighting for egress paths.
11) Renovated Pine Cottage Building (Bldg. C - 3,500 SF) for a Museum. 12) Provide accessible parking and vehicular access to the Museum (if applicable).
The SWA team has completed a site survey that includes a topographic survey, utility detection, and a structural interior/exterior laser scanning of the Pines Cottage. In addition, Psomas completed a new tree survey and assessment that identified the location, species, diameter and condition of the site’s trees.
Based on City Council’s direction, SWA would proceed with developing two concept plan alternatives that balance the existing site conditions, the Museum program, and proposed landscaping and hardscape improvements. The concept plans would address the internal pedestrian circulation showing layouts of walkways, entryways, planting areas and conceptual level landscaping. These alternatives would be presented to City Council layout for further review and refinement and then presented in community meetings for public comment.
STAKEHOLDERS/OUTREACH
Based on the City Council’s direction regarding the next steps, staff will engage in stakeholder and public outreach to ensure that community input is incorporated in the planning process for Rockhaven’s reuse and preservation.
FISCAL IMPACT
The contract amendment with SWA to include additional design services at Rockhaven will cost $900,765, which was included as a part of the FY 2023-24 budget. No new appropriation is being requested at this time. The City Council approved funding is outlined below:
Existing Appropriation
Amount Account String Funding Source
$900,765 43110-4090-CDD-0020-P0000
PL: CDD00921AG
CIP Reimbursement Fund
- State Grant
ENVIRONMENTAL REVIEW
CEQA does not apply to projects where the lead agency determines "with certainty that 6{{section.number}}1
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there is no possibility that the activity in question may have a significant effect on the environment." CEQA Guidelines (14 Cal. Code Regs.) § 15061(b)(3). Here, the action involves Council review and input of a proposed scope of work and consideration and a change order for design and planning services. There is no possibility that the action regarding the change order and provide direction on Rockhaven’s reuse may have a significant effect on the environment.
CAMPAIGN DISCLOSURE
Campaign Disclosure Statements are attached as Exhibit 2.
ALTERNATIVES
The following alternatives are presented for Council consideration:
Alternative 1: Council may deny the contract amendment. This alternative would delay transition into the conceptual design phase as staff would need to secure design services. This delay could jeopardize the City’s ability to complete the Rockhaven project by the March 1, 2026 deadline set by the State.
Alternative 2: The City Council may consider any other alternative not proposed by staff.
ADMINISTRATIVE ACTION
Submitted by:
Bradley Calvert, Director of Community Development
Prepared by:
Mark Berry, Deputy Director of Community Development/Economic Dev.
Approved by:
Roubik R. Golanian, P.E., City Manager
EXHIBITS / ATTACHMENTS
Exhibit 1 – Revised Scope of Work
Exhibit 2 – Campaign Disclosure