Administrative
Report
H.13., File # 23-5473 Meeting Date: 2/7/2023
To: MAYOR AND CITY COUNCIL
From: TED SEMAAN, PUBLIC WORKS DIRECTOR
TITLE
APPROVE ALL PENDING CHANGE ORDERS RECOMMENDED BY THE CITY ENGINEER AND RESET THE CITY ENGINEER’S AUTHORIZATION LIMIT FOR FUTURE CHANGE ORDERS AT $125,000 TO COMPLETE THE INGLEWOOD AVENUE AT MANHATTAN BEACH BLVD INTERSECTION IMPROVEMENTS (SOUTHBOUND RIGHT TURN LANE) PROJECT, JOB NO. 40960
EXECUTIVE SUMMARY
The Inglewood Avenue at Manhattan Beach Boulevard Intersection Improvements (Southbound Right Turn Lane) Project, Job No. 40960 (Project), is located at a busy intersection of the City, bridging the City of Redondo Beach and the City of Lawndale, and overlying major Metropolitan Water District and West Basin’s water distribution junctions and vaults that supply the South Bay’s water distribution system.
The City of Redondo Beach has received $5,175,000 of Los Angeles County Metropolitan Transportation Authority (LACMTA/Metro) Regional Measure R Highway Program funds for the Project. After expenditures for design, right of way acquisition, and relocation of utility infrastructure, $4,423,746 was available for construction era costs (Contractor award, contingency, project and construction management and inspection) at the time of project award.
On June 15, 2021, the City Council awarded All American Asphalt (AAA or Contractor) the construction contract for the Project in the amount of $934,948 through a competitive bidding process. Despite prior utility relocation work by Metropolitan Water District (MWD) and Southern California Edison, implementation of underground construction for the Project has suffered numerous setbacks as a result of unforeseen conditions such as poor soil conditions and, most notably, unmarked or improperly located utilities. This has resulted in a series of project delays and unexpected expenditures. To address the issues, the project team has negotiated several change order requests from the Contractor. The total value of these requests, which are detailed below, is $305,353 and exceeds the City Engineer’s change order approval authority as stated in the City’s APP 14.1 ($125,000 for the project).
A single construction change order was authorized by the City Engineer on December 14, 2022, in the amount of $120,677 (see attachment), which exhausted a significant portion of the City Engineer’s change order authority per policy. The remaining negotiated change order requests total $184,677. Staff anticipates project savings from work that will no longer be needed as a result of these changes to partially reduce the change order total, but this number cannot yet be reliably
H.13., File # 23-5473 Meeting Date: 2/7/2023
these changes to partially reduce the change order total, but this number cannot yet be reliably determined. Staff also realizes that, until the project is complete, there is potential for additional change order requests. Approximately $554,275 of the amended contract total of $1,055,625 has been paid out to date.
Staff is requesting the City Council approve the negotiated change order requests listed below, in the total amount of $305,353, and reset the City Engineer’s authority to $125,000 for future contingencies on this project. After accounting for the encumbrances associated with the original award value and this negotiated change order approval request, the available project budget for additional scope or new changes is $3,121,045.
The request to reset the City Engineer’s future change order authority is based on two potential contingency demands. The first is the possibility of further unforeseen conditions or needed design modifications to which the construction team needs to react in real time to minimize schedule impacts. The second is an opportunity to improve the Project and City infrastructure by improving the signal equipment and addressing the southwest corner of the intersection.
The awarded project did not include improvements to the corner of Inglewood Avenue at Manhattan Beach Boulevard. However, the controller that is located at this corner and operates the traffic signals has been determined to be approaching the end of its useful life. The County, who will eventually operate the intersection, as part of the County maintained Inglewood Corridor, on behalf of the City of Redondo Beach and City of Lawndale, has directed we bring it to current standards if they are to continue operating the signal operations at this intersection. With that change, there is an opportunity to move the controller cabinet to the northwest corner, which is currently under construction, where it can be located in a way that does not interfere with pedestrian traffic as it does in its current location on the southwest corner of the intersection.
This change also includes a new pole at the southwest corner to allow the opportunity to install more visible signal head deployment and the addition of flashing yellow arrow (FYA) left turn technology for both the northbound and southbound directions. FYA technology is an approved standard that traffic engineering staff recommends in certain locations to accommodate drivers with additional opportunities and shorter wait times to make a left turn, while preserving the ability to operate as a fully protected left turn during higher volume periods, as compared to the current “doghouse” style signals. FYA technology at this intersection would be a significant improvement, especially for local users in non-peak hours. These potential improvements and new scope are identified as Phase 2.
Project staff have not yet received a full cost proposal for Phase 2 work, but it is expected to be affordable and well within the existing project budget. Approximately $54,000 of the pending change order requests are due to additional work scope at the northwest corner in anticipation of moving forward with Phase 2. Approaching the project in this way would avoid having to dig up that corner a second time if Phase 2 is authorized. Other similar preemptive work may be necessary to install while the street is under construction. The thought is that this preemptive work could be approved by the City Engineer from the $125,000 reset of change order authority. Staff intends to present the full scope of work for Phase 2 construction to City Council for consideration in the coming weeks once a final cost estimate for that work is completed by the Contractor.
A pending Phase 2 addition of scope does not slow down progress to complete the first phase of work. Regardless of the decision on Phase 2, the Contractor should finish installing the curb and gutter later this week and will immediately begin paving operations, which are expected to last 4 weeks. After that, the temporary lane restrictions will be removed and the intersection will function
H.13., File # 23-5473 Meeting Date: 2/7/2023
weeks. After that, the temporary lane restrictions will be removed and the intersection will function with the addition of the new south bound right turn lane as designed. If a Phase 2 is authorized, there will be some short term taking of lanes to install the traffic controller, signal pole and signal heads, but this will result in vehicular impacts for hours or days rather than weeks or months.
BACKGROUND
The City of Redondo Beach received regional Measure R Highway Program funding through the South Bay Cities Council of Government (SBCCOG) from the Los Angeles County Metropolitan Transportation Authority (Metro). Measure R Highway Program provides funding for local arterials, signal synchronization and park-and-ride projects that have a significant operational improvement (nexus) to the State Highway system.
On October 23, 2014, the Board of Directors of Metro approved $5,175,000 in Regional Measure R funds for the Inglewood Avenue at Manhattan Beach Boulevard Intersection Improvements (Southbound Right Turn Lane) Project and on May 5, 2015, the City Council entered into funding agreement #MOU.MR312.42 with Metro accepting the funds for project development, design, right-of -way acquisition and construction. On June 20, 2017, the City Council awarded a design and right-of -way services contract to Onward Engineering.
On July 20, 2017, the Planning Commission approved Resolution 2017-07-PCR-006, a conditional use permit for the 3601 Inglewood Ave property abutting the northwest corner of the intersection, requiring it to dedicate 12-foot wide right-of-way for the City’s right turn lane project. In December 2019, a recordation with the Los Angeles County Registrar’s Office was made securing the 12-foot right-of-way necessary for portions of this project. On November 5, 2019, the City entered into an agreement with the MWD to design and construct its relocated vents and appurtenances present at and beneath this intersection that conflicted with the proposed right turn lane. MWD completed the utility relocation design and construction in June 2020 for a total cost of $283,319.
The City Council authorized the City Engineer to negotiate with the property owners of 3615 Inglewood Ave to purchase the additional right-of-way (552 sq. ft.) required for the transition to the right turn lane and a temporary construction easement (TCE) for the project. On January 19, 2021, the City Council approved the Purchase Agreement for a purchase price of $131,200.
On April 13, 2021, the City Council approved the project plans and specifications and authorized the City Clerk to advertise the project for competitive bids. The project was advertised on April 29, 2021, and five (5) bids were received and publicly opened on June 3, 2021. On June 15, 2021, the City Council awarded AAA the construction of the Project for $934,948. However, AAA couldn’t start the work without proper Right of Way Recordation for the 552 square foot area and TCE acquired from private property, needed to allow access to the construction area. Right of Way document signing and final recordation took almost a year by the County Recorders and the Escrow office, due to signed documents getting lost in the mail from multiple out of state owners, and County Recorder changing the format of the documents requiring recordation. On May 16, 2022, final recordation from the County Recorder’s Office was obtained. A Notice to Proceed was finally issued to the Contractor on July 18, 2022.
Demolition of the westerly curb of Inglewood was initiated first so that a new County storm drain laterals and a catch basin could be installed. This required a lane closure, which has not been able to be removed yet. AT&T fiber optic ducts, which were marked but that were found to be more
H.13., File # 23-5473 Meeting Date: 2/7/2023
to be removed yet. AT&T fiber optic ducts, which were marked but that were found to be more shallow than reported, caused a conflict with the new LACFCD laterals, triggering redesign of LACFCD lateral and manhole, and revisions to the LACFCD permit requirements. This caused significant delay, periods where work could not be completed at its expected pace and increased cost.
The excavation also revealed poor soil conditions that required introduction of a lean mix cement product for base material to replace the unusable soil. Conduit run alignments, installed by a boring process also had to be changed due to discovery of unmarked utility infrastructure. Another major change order requirement is due to the City’s preference for the continued County jurisdiction to maintain the traffic signals of this intersection. County review requires upgrading and, preferably, relocation of the traffic controller unit and cabinet. While inconvenient to schedule, this is a project upgrade benefits the City. Additional underground conflicts at locations of new traffic signal poles, at the northwest and northeast corners, necessitated significant redesign which resulted in construction and material delivery delays for long lead items and periods of no significant field work.
The following change order requests have been negotiated to accommodate the unforeseen field conditions, needed scope upgrade/modifications, significant design modifications and delays incurred by the Contractor due to these design modifications. Five of these change order requests we bundled into Construction Change Order Number 1 (CCO1). The City Engineer Issued CCO1 on December 14, 2022, within his change order authority of $125,000 to accommodate the following requests:
· Changes to Original Scope due to unforeseen conditions:
1-1 Conduit run alignment revision to avoid utility conflict $ 53,110.00 1-2 Add lean PCC base to replace unsuitable soil $ 35,335.36 1-3 Additional Tree Removal - Bid Item 27, Qty 1 $ 4,785.00 · Changes due to Revised LACFCD Storm Drain Plans/Permit:
1-4 LACFCD Added New Manhole $ 9,475.71
1-5 T&M Tickets (Misc. Work Related to Manhole) $ 17,970.63 Total Approved CCO1 $120,676.70
Pending change order requests (proposed CCO2), requiring Council approval:
· Changes to Original Scope (time and materials - T&M) based on unforeseen underground conditions and potholing to find satisfactory alternate new utility locations:
2-1 T&M AAA & Belco Set (3) (Relocation of water lines, Concrete work for unforeseen foundation issues, rerouting of exposed train track cables) $ 33,906.37
2-2 T&M AAA & Belco (Potholing for Poles, Traffic Control, Conduit Rerouting) $ 22,001.65
2-3 T&M AAA- MWD Waterline Repair $ 44,512.28
H.13., File # 23-5473 Meeting Date: 2/7/2023
· Changes to Original Scope to address public safety issues:
2-4 Night Work Belco (PCO No. 4.00) & AAA Traffic Control $ 12,380.73 2-5 Pole Cutting Belco (PCO No. 5.00), SCE Spec Required $ 6,021.04 2-6 Luminaire Price Adjustment, SCE Spec Required $ 2,759.46 · Changes due to Delays not assigned to Contractor:
2-7 BELCO Electrical Sub Rate Adj due to Delay $ 4,440.72 2-8 PCC Rate Adjustment due to Delay $ 5,060.00
· Changes due to Preemptive Phase 2 work:
2-9 Preemptive Phase II extension of buried conduit, controller $ 53,594.46 Total Pending CCO2: $184,676.71
Due to extended period of rainy weather condition, in addition to the many delays detailed above, the projected completion date of Phase 1 of the Project has been extended to the end of March 2023.
Except as noted above, Phase 2 portions of the work will not proceed without prior authorization of the City Council and will occur only after a break in work necessary to order and secure the proposed new equipment. Any subsequent Phase 2 work will not impact any civil (roadway) work of this project. In the absence of the new controller, the intersection traffic signals and equipment will operate with the existing controller.
COORDINATION
Progress and expenditures of the Regional Measure R funds is being coordinated with and reported to, Metro. Project progress, inspection and management is coordinated by the Public Works Department.
FISCAL IMPACT
The project is fully funded by Regional Measure R Highway Grant Funds, paid to the City on a reimbursement basis. The large grant amount for the project was based on anticipated right-of-way acquisition costs, which were not ultimately needed. Therefore, there is sufficient funding available to cover all proposed change order requests and to provide additional change order authority. Any funds remaining at the end of the first phase of the project may be used for the proposed Phase 2 construction work or otherwise retained by Metro. There is no impact of the recommended staff action for this Project on the City’s General Fund.
Funding: Estimated Expenditures:
Regional Measure R Grant $5,175,000 Onward Eng. Design/ROW Svcs. $ 336,735 ROW Acquisition $ 131,200
MWD Utility Relocation $ 283,319
H.13., File # 23-5473 Meeting Date: 2/7/2023
Construction Inspection - Ardurra $ 62,400
Construction Award - AAA $ 934,948
Proposed CCO’s $ 305,353
Additional Contingency $ 125,000
Project Mgmt. & Const. Mgmt. $ 150,770
Available for Phase 2 $ 2,845,275
TOTAL $5,175,000 TOTAL $ 5,175,000
APPROVED BY:
Mike Witzansky, City Manager
ATTACHMENTS
· Change Order - CO1 -Inglewood Ave. SB RTO at Manhattan Beach Blvd. Job No. 40960