1. Permanent Wall at Splash Wave Pool mur permanent à la piscine
à vagues splash |
COMMITTEE
RECOMMENDATION
That
Council approve Option 2 - the construction of a permanent wall at the Splash
Wave Pool, 2040 Ogilvie Road, as described in this report.
Recommandation du comité
Que le Conseil approuve
l’option 2 – la construction d’un mur permanent à la piscine à vagues Splash,
2040 rue Ogilvie, tel que décrit dans le présent rapport.
DOCUMENTATION
1.
Deputy City Manager report dated 26 April 2007 (ACS2007-BTS-RPM-0004).
Report to/Rapport au :
Community and
Protective Services Committee
Comité des
services communautaires et de protection
and Council / et au Conseil
26 April 2007 / le 26 avril 2007
Steve Kanellakos,
Deputy City Manager, Community and Protective Services/Directeur municipal
adjoint, Services communautaires et de protection
Contact
Person/Personne ressource : Stephen A. Finnamore, Executive Director
Business Transformation Services / Services de transformation des activités
(613) 580-2424 x 28859, steve.finnamore@ottawa.ca
Co-ordinated for/Coordonner pour : Aaron
Burry, Director
Parks and Recreation/Directeur, Parcs et
loisirs
(613) 580-2424 x 23666, aaron.burry@ottawa.ca
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OBJET : |
REPORT
RECOMMENDATION
That the Community and
Protective Services Committee recommend Council approve Option 2 - the
construction of a permanent wall at the Splash Wave Pool, 2040 Ogilvie Road, as
described in this report.
RECOMMANDATION DU RAPPORT
Que le Comité des services communautaires et de protection recommande que le Conseil approuve l’option 2 – la construction d’un mur permanent à la piscine à vagues Splash, 2040 rue Ogilvie, tel que décrit dans le présent rapport.
EXECUTIVE SUMMARY
The Real Property Asset
Management (RPAM) branch is responsible for the replacement of building and
park assets that have reached end of life and manages several capital programs
dedicated to life cycle renewal work. As part of its 2005/06 capital program,
RPAM established a performance-based contract for the replacement of the
floating bulkhead at the Splash Wave Pool located on Ogilvie Road in the east
end of the City and entered into contract with a local contractor to undertake
the design, manufacture and installation of a new floating bulkhead. Despite
repeated efforts to retrofit the new bulkhead, the contractor has not been able
to provide a floating bulkhead that meets the performance requirements of the
facility and its programming. As a result, the facility has been unable to
provide wave swims since September 2006, following the annual maintenance
program. Based on the lack of performance of the manufactured unit, the City
has terminated the contract with the contractor and legal actions may be
forthcoming. In concert with the Parks and Recreation branch, RPAM, as well as
other municipal divisions, are recommending a different strategy in response to
the requirements of the Splash Wave Pool as outlined in this report.
RÉSUMÉ
La
Direction de la gestion des biens immobiliers (GBI) est responsable du
remplacement des biens immobiliers et des biens se trouvant dans les parcs qui
ont atteint la fin de leur vie utile, de même qu’elle gère plusieurs programmes
d’immobilisations liés au renouvellement de biens. Dans le cadre de son
programme d’immobilisations de 2005-2006, la Direction de la GBI a établi un
contrat fondé sur le rendement pour le remplacement de la cloison flottante de
la piscine à vagues Splash, située sur le chemin Ogilvie, dans l’est de la
ville, et elle a passé un contrat avec un entrepreneur local pour la
conception, la fabrication et l’installation d’une nouvelle cloison flottante.
En dépit d’efforts répétés pour adapter la nouvelle cloison, l’entrepreneur
n’est pas parvenu à fournir une cloison flottante qui réponde aux critères de
rendement de l’installation et de ses programmes. En raison de cette situation,
les bains dans les vagues sont suspendus depuis le mois de septembre 2006, soit
depuis la fin du programme d’entretien annuel. Comme la cloison fabriquée par
l’entrepreneur ne donnait pas le rendement escompté, la Ville a résilié le
contrat et un recours judiciaire est possible. De concert avec la Direction des
parcs et loisirs, la Direction de la GBI et d’autres divisions de la Ville
recommandent, pour répondre aux exigences propres à la piscine à vagues Splash,
une stratégie différente, qui est décrite dans le présent rapport.
BACKGROUND
The Splash Wave Pool was constructed in 1987
and was regarded as one of the first indoor wave pools developed in Canada. The
design approach that was used for this pool was, and continues to be, a
somewhat unique application based on limited financial resources at the time of
construction. The design of the pool allows for wave swims and lane swimming as
well as associated aquatic club programs and the full gamut of learn-to-swim
lessons to be offered at the facility, albeit not all simultaneously. Appendix
1 provides a base drawing of the facility and the pool tank arrangement.
Role of Floating Bulkhead
In order for waves to be properly generated and
controlled, it has been necessary to physically separate the wave pool portion
of the tank from the lap pool. This physical arrangement ensures that the wave
action is consistent and allows for the proper dissipation of the waves at the
shallow end of the wave pool, thereby mimicking a beachfront. The physical
separation of the wave pool and lap pool has been done using a specially built
floating bulkhead that acts principally as a moveable wall.
Through a series of air-ballast tanks, the
floating bulkhead is raised from its resting perch in the deep end of the wave
pool and maneuvered by staff using ropes and grab bars to its locking position
at the junction where the lap pool meets the wave pool. Once in position, the
waves can be generated. At the end of the wave swim period, the floating
bulkhead is returned to its resting position in the deep portion of the wave
pool and lane swimming, learn-to-swim lessons, club activities and leisure
swims can be offered to the public.
Typically, bulkheads are used to separate
large, uniform pools, such as the Olympic-sized pool at the Nepean Sportsplex,
into different sections, allowing various aquatic activities to be offered
simultaneously such as diving lessons in the deep end, advanced swimming
lessons in the middle portion and children’s programming in the shallow
portion. Static and dynamic loads on this type of bulkhead are consistent and
minimal. The floating bulkhead at the Splash Wave Pool is subject to more
intense dynamic loads and its design and construction is therefore more
intricate. The original bulkhead was twenty (20) years old and in poor
condition. RPAM initiated a capital project within its capital life cycle
renewal program to replace the original bulkhead with a new piece of equipment.
Contract Issues
Recognizing that there are few swimming pool
bulkhead firms with the design and manufacturing experience to undertake this
technical requirement and in view of the fact that the City and the local
industry had no extensive experience with swimming pool bulkheads and
fiberglass construction, the City issued a performance-based contract that
stipulated only the performance requirements of the bulkhead. The design
intent, the durability requirements and the ease of movement and set-up of the
new bulkhead were key components of the request for tender (RFT) document. The
responsibility to design, manufacture and install the new bulkhead rests
entirely with the firms submitting responses to the RFT.
Two firms submitted tenders for the replacement
of the bulkhead and the contract was awarded to a local firm that teamed with a
USA-based manufacturer for the design and manufacture of the new floating
bulkhead. Time is of the essence in the contract issued to the contractor, with
the bulkhead to be fully commissioned and in service by September 22, 2006.
Despite repeated efforts to retrofit the bulkhead’s anchoring system, braces
and overall stability, the bulkhead does not perform adequately. Staff is of
the opinion that the manufactured product does not meet the performance and
safety requirements stated in the RFT document. There have been no wave swims
at Splash Wave Pool since September 2006.
Other Considerations
The approved 2007 capital life cycle renewal
budget has earmarked significant work at Splash Wave Pool. The main heating and
dehumidification system will be replaced during a planned two-month shutdown in
July and August. A contract has been awarded for the purchase of the
dehumidification equipment. Plans are to purchase and install a new ultra-violet
treatment system to complement the existing pool system. These major
initiatives, coupled with roofing replacement work, will enhance the building’s
air and environmental systems and ensure the long-term performance of the
facility. Staff wishes to integrate any planned replacement of the bulkhead, or
other strategy, within this timeline as much as possible.
DISCUSSION
Option 1 – Establish Contract for New Bulkhead with
Second Proponent
On a without prejudice basis, staff has
explored with another contractor and its preferred manufacturer the timing and
performance issues with regard to an alternative floating bulkhead. Although
the contractor and manufacturer have installed numerous bulkheads, their
collective experience has been limited to bulkhead installations in pools
without wave action. Although the firms believe that they can produce a
floating bulkhead that will meet the performance requirements of the original
RFT, the firms candidly admit that the failure of the recent bulkhead requires
a more cautious approach.
At a recent meeting held at the pool, the
proponent confirmed that it would take time to access the required engineering
expertise and complete the industrial process to configure, design and
manufacture a new floating bulkhead. It is not expected to be in place until
late December 2007. The proponent commented that they are not afforded an
opportunity to see the old or new bulkhead working in order to fashion the
final product. The lack of a functioning bulkhead on-site is a factor that has
changed since the issuance of the original Request For Tender and creates
additional difficulties with the design effort.
The installation of the new bulkhead will
necessitate a further closure of the pool for a period of up to three weeks,
resulting in program cancellations, reduced leisure swims and club bookings.
The Parks & Recreation branch has indicated that this program impact would
be a major inconvenience to pool users and would generate more complaints and
loss of participation and revenue at the Splash Wave Pool, considering the
number of closures that the pool has been subjected to since September 2006.
There is significant concern about the absence of wave swims at this facility
for the entire year.
It is understood that within the remaining
service life of Splash Wave Pool that another floating bulkhead will have to be
designed and manufactured. The availability of bulkhead manufacturers to
respond to that future replacement may become a problem. The labour costs
related to the moving and set-up of the bulkhead will be a mainstay of the
operating budget as well as the on-going maintenance and repair requirements
associated with this type of equipment.
The upset costs related to Option 1 are
estimated at $ 300,000. After reviewing the contractual terms and other matters
pertinent to this project, the second proponent has indicated that the progress
payment schedule will have to allow an initial payment equal to 55 percent of
the contract value in order to acquire the engineering expertise and materials
necessary for the design and fabrication of the floating bulkhead. A further 35
percent progress payment is expected at delivery. The concern about extending
payments in advance of a proven technical solution remains. The City would
insist on performance security in keeping with the provisions of the original
RFT.
Option 2 – Construct Permanent Wall
Option 2 involves the construction of a
permanent wall to separate the lap pool from the wave tank. This work would be
done during this year’s planned shutdown in July and wave swims, along with
limited learn-to-swim programs, would be available this September. The
permanent wall will permit patrons to transition from the slide and wave pool
to the hot tub area and will provide an excellent lifeguard station. The
internal labour required to move and secure a floating bulkhead would cease
under this option. This option provides the quickest and most reliable solution
to the re-instatement of wave swims at Splash Wave Pool.
From a different perspective, aquatic club
activities, lap swimming and some learn-to-swim programs will have to be
suspended at the Splash Wave Pool. The Parks & Recreation branch will
attempt to find alternate space for the aquatic clubs and these aquatic services;
however, given the limited available hours of pool time, it may not be possible
to secure pool time that is convenient. Although there are plans to construct
new aquatic facilities in the east end of the City, these facilities are not
expected to be in service for another three to four years. Certain measures,
such as the introduction of free lane swimming devices or other programming
features, could form part of this option and lessen the loss of lap swimming
and specialized aquatic training and instruction.
The estimated cost of Option 2 is $ 115,000.
This option recognizes the City’s lack of capital funding to offset the cost of
Option 3. It also recognizes that wave swims represent 65 percent of the
revenue stream for this pool and works to have wave swims offered at the
earliest opportunity.
Option 3 – Modification of Splash Wave Pool
This option calls for the adoption of a new
strategy for the Splash Wave Pool. The design concept of an integrated wave
pool and lap pool is abandoned and a new concrete wall is erected between both
tanks. The 25-metre lap pool is replicated by means of an external addition to
the pool of approximately 200 square metres, which is below the threshold for
site plan review and approval. A new and separate heating and filtration system
serves the ‘new’ lap pool. The existing heating and filtration system is
assigned exclusively to the wave pool, resulting in greater water treatment
capacity.
With this physical separation in place and a
replicated lap pool, the Splash Wave Pool can offer uninterrupted wave swims
throughout each program day and deliver all other programs simultaneously.
Adoption of Option 3 would entail an estimated
capital cost of $ 1.7M and there is presently no funding source for this
option. In the absence of confirmed
funding, this option cannot be pursued at this time.
FINANCIAL IMPLICATIONS
Funds in the amount of $115,000 are available
within the 2007 Lifecycle Renewal – Buildings capital program within the Real
Property Asset Management branch to defray the costs for the construction of
the permanent wall as described under Option 2.
RURAL IMPLICATIONS
Although the re-construction of the Splash Wave
Pool recommended herein is not a rural affairs issue, it is recognized that the
Splash Wave Pool draws its participants from a wide geographical area,
including residents from the rural communities of Ottawa. This draw is based on
the novelty of indoor wave swims of the type produced at this facility.
CONSULTATION
The contents of this report have been shared with staff
from many internal departments and divisions, including Legal Services;
Financial Services; Parks & Recreation; Corporate Communications (Media
Relations) and Supply. In addition, the Parks & Recreation branch has
brought this matter and the recommendations contained herein to the attention
of Council’s Parks and Recreation Advisory Committee. The Committee has
endorsed these recommendations. The concerns of the Ward 11 and Ward 2
councillors were considered in developing the recommendations in this report.
SUPPORTING DOCUMENTATION
Document 1 – Splash Wave Pool Floating
Bulkhead Configuration
DISPOSITION
Subject to approval of this report, RPAM will
proceed with the completion of design for the permanent dividing wall and will
issue a tender for its construction.
Document 1
