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Home My WebLink About2012 05 14 Regular 600 Tuscawilla Unit 12 Wall COMMISSION AGENDA Informational Consent ITEM600 Public Hearings Regular X May 14, 2012KSKL Regular MeetingCity ManagerDepartment REQUEST: The Public Works and Community Development Departments are requesting that the City Commission: (1) Affirm Staff's conclusion that the Tuscawilla Units 12/12A wall is in various states of disrepair and should be demolished and removed, replaced, or placed on a rehabilitation program for the ongoing repair, maintenance, and periodic upgrade of the wall; and (2) Review several options related to addressing the potential safety hazard concerns of the Tuscawilla Units 12/12A wall and provide final direction regarding the City’s handling of those concerns. SYNOPSIS: Based on a comprehensive evaluation, City staff and the City's structural engineering consultant have concluded that the existing brick wall along the Winter Springs Boulevard and Northern Way boundaries of Tuscawilla Units 12/12A is in a state of disrepair and a potential safety hazard. Two Public Workshops have been held recently to advise the City Commission regarding this situation and to collect input and discuss possible options for the repair, replacement, or removal of the wall. This agenda item provides a comprehensive summary of the issue and presents options for the Commission’s consideration. The purpose of this agenda item is for the City Commission to receive and review all available information on the wall, consider the options available to address the potential safety concerns related to the condition of the wall, and provide final direction regarding the City’s handling of the potential safety concerns. Regular 600 PAGE 1 OF 11 - May 14, 2012 CONSIDERATIONS: Information Previously Presented: Tuscawilla Units 12/12A were platted by the city of Winter Springs in 1982 and 1983. The Plats depict a 10 foot wide drainage, utility, fence and landscape easement generally along the rear lot lines of the lots abutting the subdivision’s southern and western boundaries, adjacent to Winter Springs Boulevard and Northern Way. The Plat provides that all streets and easements shown on the Plat were dedicated to the perpetual use of the public. Around the time that the subdivisions were platted, the developer also recorded A Notice of Restriction on Real Estate establishing covenants and restrictions on the Platted property. With respect to the easement area depicted on the Plat, the Restrictions provide that “the easement area of each lot and all improvements in it shall be maintained continuously by the owner of the lot, except for those improvements for which a public authority or utility company is responsible.” The Tuscawilla Units 12/12A brick wall is approximately 3,000-feet in length and generally runs along the subdivision’s southern and western boundaries, adjacent to Winter Springs Boulevard and Northern Way (see Exhibit 1). There is no record or evidence whatsoever indicating that the City has ever taken any responsibility for the wall. In addition, with respect to the platted easement area, the City Attorney has opined that section 177.081, Florida Statutes, provides that approval of a plat does not create an obligation upon any governing body to perform any act of construction or maintenance within any publicly dedicated easement areas except when the obligation is voluntarily assumed by the governing body. Permit logs show that the City issued a building permit for the wall on December 1, 1983 to Winter Springs Development Corporation, and the wall was likely built between the time periods of late 1983 through mid-1985. The wall is constructed of 5-inch wide brick panels approximately 4.7-feet high and 14.5- feet wide between 5-foot high columns that are 1.5-feet square. The panels have a lattice pattern of openings (see Exhibit 2 for a typical wall panel photograph). Residents of Tuscawilla Units 12/12A do not currently have an HOA to maintain the wall and as a result, the wall has deteriorated due to the lack of maintenance after it was initially constructed about 26 years ago. City Engineering Staff recently performed a field review and installed yellow caution tape around approximately 150 linear feet of the wall that appeared to present a safety hazard due to instability. The hazardous locations are all at corner sections of the wall and the short extensions down the side streets. A structural evaluation of the entire wall was completed by CPH Engineers in March 2012. CPH’s evaluation identified wall failures at many locations due to brick expansion, corrosion, settlement, and tree roots. CPH determined the wall footing has an inadequate Regular 600 PAGE 2 OF 11 - May 14, 2012 width and depth, and the wall has no vertical reinforcement. CPH concluded that the wall does not meet the stability requirements of the current building code, or the building code that was in place at the time of construction, and that it cannot be brought up to code without substantial reconstruction. A copy of CPH’s report is attached as Exhibit 4. A survey of the wall location was performed by the City’s survey consultant, Southeastern Surveying and Mapping Corporation, in February 2012. The purpose of the survey was to determine the location of the wall with respect to the right-of-way line along the entire 3,000-foot length. The survey is posted on the City website, www.winterspringsfl.org, under “Public Notices.” A detailed review of Southeastern’s survey determined that the wall location is as follows: Wall Location:% of Total Entirely in City Right-of-Way61% Entirely in Platted Easement14% Entirely on Private Property (outside of easement)6% On the Right-of-Way Line19% Total100% It appears that based on the information gathered by the City, the developer of Tuscawilla Units 12/12A intended for the wall to be placed in the 10 foot wide drainage, utility, fence and landscape easement generally along the rear lot lines of the lots abutting the subdivision’s southern and western boundaries, adjacent to Winter Springs Boulevard and Northern Way. However, based on Southeastern’s recent survey, City staff can now reasonably conclude that substantial portions of the wall were inadvertently placed within the City’s rights-of-way or along the boundary of the rights-of-way. Staff obtained several quotes from local contractors for the demolition and complete removal of the wall. The low bid price was $25,000 plus any necessary sidewalk repairs. Assuming an allowance for sidewalk and other miscellaneous repairs in the amount of $7,000, the total cost to remove the wall, grade, and sod the disturbed area would be about $32,000. Staff has discussed brick wall repair and replacement costs with several area contractors and developers. The cost to construct a new brick wall that meets the current Florida Building Code is estimated to be in the range of $100/foot, or $297,700 for the entire wall (wall construction only). Regular 600 PAGE 3 OF 11 - May 14, 2012 Seminole Masonry has submitted a proposal of $475,000 for replacement of the entire wall, including: Demolition and haul-off of the existing wall  Removal of trees and shrubs within 4-feet of the wall  Replacement of the entire sidewalk adjacent to the wall  Construction of a new 6-foot, solid brick wall with 16” columns on 40-foot  spacing Temporary chain-link fence during construction  Sodding of all disturbed areas  Irrigation repairs  Staff also reviewed a proposal from Alternative Wall Systems to repair the wall. At the Tuscawilla Units 12/12A wall, the Alternative Wall Systems approach would not fully address the structural deficiencies and would not bring the wall into compliance with the Florida Building Code. Public Workshops were conducted at City Hall on January 31, 2012 and March 28, 2012. The purpose of the workshops was to present information, collect input, and to discuss possible options for the wall’s repair, replacement, or removal, in addition to discussions of potentially creating an assessment area to fund repairs and maintenance of the wall if it were to remain. Informational Update: Several issues related to the wall were raised at the March 28 workshop, or thereafter, and are addressed below: Survey Accuracy:  To support the accuracy of Southeastern’s field survey of the wall location, Staff obtained and reviewed eight (8) lot surveys from abutting properties at various locations along both the Winter Springs Boulevard and Northern Way sections of the wall. The lot surveys were prepared at various times by different survey firms and were on file at the City as part of building permits, or were provided by homeowners as part of the wall discussion. In all eight cases, Southeastern’s survey matched very closely with the lot surveys. At this time, Staff has not seen any documents showing the wall location in conflict with Southeastern’s survey. Staff has requested lot surveys, if available, from the remaining abutting property owners, and Staff will continue to evaluate any potential conflicts, if they arise. Therefore, at this time, Southeastern's survey remains a reliable source of information from the City's perspective. Liability:  Approximately 80% of the Tuscawilla Units 12/12A Wall is located within or Regular 600 PAGE 4 OF 11 - May 14, 2012 partially on City rights-of-way. The wall has been determined to be structurally deficient by a licensed structural engineer and therefore, the City Attorney has opined that the portions of the wall located on the rights-of-way present a potential liability and risk for the City if conditions of the wall remain the same or the wall continues to deteriorate. Further, the City should take reasonable steps to mitigate against the potential liability and risk. As such, if the City Commission decides to allow the wall to remain in the right-of- way, the potential liability will need to be managed by taking reasonable steps to remediate the safety concerns presented by the condition of the wall. One means of managing the potential liability and risk exposure to the City, which is further discussed later in this agenda item, is the demolition and removal of some or all of the wall. Another means of managing the liability and risk is the establishment of a Special Assessment Program. In a Special Assessment Program, portions of the wall posing an immediate safety concern (about 150 linear feet) would be rebuilt with a new wall that complies with the current Florida Building Code and would be structurally and visually superior to the existing wall. Furthermore, to manage any future liability exposure and risk that could arise by leaving the remaining portion of wall in the rights-of-way, the following steps could be taken as part of a Special Assessment Program: 1.Portions of the wall (about 2,850 linear feet) not immediately replaced with a new wall would be placed on a regular evaluation and maintenance program to monitor, repair, and potentially replace various segments of the wall over time. 2.The wall would be added to the City’s property damage insurance policy just the same as all walls located within, and under the areas of responsibility of, the other City Special Assessment Programs: Tuscawilla Lighting and Beautification District and Oak Forest Wall and Beautification District. 3.Trees located immediately along the wall within either an easement or the right- of-way would be routinely maintained to reduce potential damage to the wall. In summary, in this approach, since the City would oversee maintenance of the wall and manage the related Special Assessment Program, Staff believes that it would not be necessary to remove the wall from the right-of-way as the City’s potential liability exposure would be managed by a combination of ongoing monitoring, maintenance, and insurance coverage. New Documents:  Staff has researched all available City records related to Tuscawilla Units 12/12A for any information on the wall. Since the March 28 workshop, no new documents have been located or provided to Staff or the City Commission that would alter or otherwise change or affect Staff's prior findings. The relevant historical documents located to date include: Plat – Tuscawilla Unit 12  Plat – Tuscawilla Unit 12A  Final Engineering Record Drawings for Units 12 and 12A  Restrictions on Real Estate (‘Deed Restrictions’ – Units 12 and 12A)  Building Permit Log showing the City issued a building permit to Winter  Regular 600 PAGE 5 OF 11 - May 14, 2012 Springs Development Corporation on December 1, 1983 for the wall Lot surveys for eight (8) abutting properties  Staff also contacted Mr. Charles True, an engineering consultant who worked on Tuscawilla Units 12/12A for Winter Springs Development Corporation. Mr. True did not have any documents related to Tuscawilla Units 12/12A. In recent telephone conversations with Staff, Mr. True offered the following historical points based on his recollection of the project. Per Mr. True: The wall was never intended to be the City’s responsibility  The purpose of the wall was to: 1) block direct vehicle access from the backs of  abutting lots to WS Blvd; and 2) to enhance the value of the Tuscawilla Unit 12 properties Winter Springs Development Corporation elected to build the wall; it was not  required by the City or shown on any of the approved development documents for Tuscawilla Unit 12 The plat, deed restrictions, and easements were setup with the intention that  each individual lot owner be responsible for their portion of the wall The wall did not affect property owners in back of the subdivision, so there was  no need for an HOA Mr. True was not aware of approval or intent by any party to locate the wall in  the right-of-way Mr. True’s comments seem to support City staff’s conclusion that the wall was intended to be placed within the 10 foot easement area, but was inadvertently placed within the City’s rights-of-way. Options: Based on the structural evaluation, Staff's conclusion is that the wall is in disrepair and should be demolished and removed, replaced, or placed on a rehabilitation program for the ongoing repair, maintenance, and periodic upgrade of the wall. The following options are presented for the City Commission’s consideration. These options were developed based on input received from the City Commission and residents to date, along with Staff’s evaluation of the costs and feasibility of various potential options. Option 1 – Demolish and remove the entire wall at a cost to the City of $32,000 Approximately 80% of the wall is in the right-of-way or on the right-of-way line.  The wall is structurally deficient, unsafe in certain locations, and cannot be  structurally repaired without substantial reconstruction. There is no current entity in place to maintain the wall.  Demolishing the wall permanently solves the problem and the potential liability of  having a deficient wall located in or immediately adjacent to the City’s right-of-way. Because portions of the wall are located on private property, demolishing the entire  wall would require a right-of-entry from the respective property owners to remove portions of the wall located entirely on private property (approximately 6% of the total wall length on eight properties). Property owners who are unwilling to grant a right-of-entry could be subject to Code Enforcement action pursuant to the City’s unsafe structure ordinance. Regular 600 PAGE 6 OF 11 - May 14, 2012 After wall demolition, the abutting residents could install fences, walls, and  landscaping for screening and/or security. These items would have to be located outside the right-of-way on private property. Several residents have expressed concern about the overall appearance of the area  after the wall is removed, especially if the wall is replaced with fences of various styles. Option 2 – City Offers a Special Assessment Program A Special Assessment Program would establish a partnership between the City and the 90 property owners in Tuscawilla Units 12/12A for the repair, selective/periodic rebuilding, and long-term maintenance and upgrading of the wall. The Assessment Program would have two components charged to the property owners: a capital assessment to pay for one-time capital costs and/or recurring loan payments, and a maintenance fee charged annually to pay for maintenance and administration costs. The amount of the assessment for each property is dependent on the location of the property and the extent of the City’s participation in the program. If an Assessment Program is formed, Staff favors a two-tier fee structure with the 20 abutting properties at 1.5 benefit units and the remaining 70 properties at 1.0 benefit units. This means that the 20 abutting property owners would pay 50% more than the non-abutting property owners due to additional benefits the wall may provide to abutting properties (screening, security, noise reduction, beautification, etc.). It is important to note that the two-tier fee structure and its cost allocation are subject to change based on results of research conducted during the program establishment process. Consultants for the Assessment Program will research and formulate the most reasonable and defensible methodology for the Tuscawilla Units 12/12A Wall Area as part of the process. Under Florida Law, two requirements for the imposition of this type of a special assessment on property owners must be met, and potentially defended if challenged: special benefit 1.Assessed property must receive a from the service or facility funded by an assessment. fairlyreasonably 2.The assessment must be and apportioned among the benefited properties. For example, the Oak Forest Wall and Beautification Assessment Program, which has a wall located close to a major roadway, uses a three-tier fee structure based on three benefit components: Beautification, Noise Abatement, and Light Abatement. Due to its location, the Tuscawilla Units 12/12A Wall could potentially have less benefit components identified during the establishment process; hence the two-tiered fee structure that is favored by Staff. Under the Assessment Program for Units 12/12A, the first phase would consist of the demolition and replacement of approximately 150-feet of the wall posing an immediate safety hazard, at an estimated cost of $32,000. Replacement sections of the wall must be built in full compliance with the current Florida Building Code. After initial demolition and replacement of the most deficient sections, maintenance funds collected under the Assessment Program would be used for items such as: cosmetic repairs, patching, cleaning, sealing, minor brickwork, and selective structural repairs and/or replacement sections based on need and available funding. Regular 600 PAGE 7 OF 11 - May 14, 2012 Should the City Commission desire to offer a Special Assessment Program, two versions of Option 2 are presented for the Commission’s consideration (all amounts are estimated based on the best available information but are subject to market changes prior to finalization): Option 2A – City creates an Assessment Program and makes a partial contribution to the Program in the amount of $32,000 The estimated cost to demolish the entire wall is $32,000.  Instead of funding wall demolition, the City would contribute up to $32,000 for  the demolition and replacement of approximately 150-feet of the wall posing an immediate safety hazard. Units 12/12A property owners fund the capital cost to establish the assessment  program ($29,500) plus the annual maintenance assessment. Under Option 2A, the one-time capital assessment would be $405 for the 20  abutting homeowners and $270 for the 70 non-abutting homeowners. Owners could elect to participate in financing of the capital assessment where  the annual cost would be $105 for the 20 abutting homeowners and $70 for the 70 non-abutting homeowners, amortized over a five-year period. Under Option 2A, the annual maintenance assessment would be $159 for the 20  abutting homeowners and $106 for the 70 non-abutting homeowners. Option 2B – City creates an Assessment Program and does not contribute funding to the Program Units 12/12A property owners fund the capital cost for the demolition and  replacement of approximately 150-feet of the wall posing an immediate safety hazard ($32,000), the capital cost to establish the assessment program ($29,500), plus the annual maintenance assessment. Under Option 2B, the one-time capital assessment would be $885 for the 20  abutting homeowners and $590 for the 70 non-abutting homeowners. Owners could elect to participate in financing of the capital assessment where  the annual cost would be $120 for the 20 abutting homeowners and $80 for the 70 non-abutting homeowners, amortized over a 10 year period (subject to available financing). Under Option 2B, the annual maintenance assessment would be $159 for the 20  abutting homeowners and $106 for the 70 non-abutting homeowners. Please refer to Exhibit 3 for a detailed breakdown of the costs for Options 2A and 2B. Option 2B assumes a loan in the amount of $61,500 for capital costs amortized over a 10 year period, which is subject to interest rates and other financial terms and conditions dictated by the marketplace. Option 3 – No Assessment Program; Homeowners take full responsibility for the wall and fund wall maintenance If no Assessment Program is created, the wall could still be funded for  replacement and repairs directly by a group of homeowners, either as part of an HOA or a separately organized wall maintenance entity. To address the immediate safety concern, the 150 linear feet of wall that has  Regular 600 PAGE 8 OF 11 - May 14, 2012 been determined to be most hazardous to the public would be removed immediately by the City at a cost of up to $3,000. A right-of-entry would be required from five property owners to remove portions of the wall located entirely on private property. Property owners who are unwilling to grant a right-of-entry could be subject to Code Enforcement action. Due to current safety concerns related to the wall, the formation of an HOA or  separate entity that can receive title to the vacated portion of the right-of-way, or otherwise accept responsibility for the wall, would need to be completed within a time certain (within 12 months); otherwise, the City would proceed with demolition of the wall (Option 1). The HOA or separate entity would need to obtain the land rights to maintain the  wall, including: Receiving a vacated portion of the right-of-way from the City.  Obtaining easement rights from private property owners where the wall  is currently located on private property. Until the homeowner’s group assumes legal responsibility for the wall, the City  would retain the option of demolishing portions of the wall in or on the right-of- way that are determined to be a public hazard. Option 4 – City vacates the right-of-way under the wall Theoretically, vacating the right-of-way completely and forever removes the  potential liability of the wall from the City’s property. The vacated portion of the right-of-way would be conveyed to the abutting  property owners by operation of law at such time the City Commission adopts a vacation of right-of-way resolution and records it in the Official Public Records of Seminole County. The abutting property owners could choose to remove, replace, or repair the  wall as desired and/or as necessary. The cost to vacate the right-of-way is estimated to be less than $1,000 for the  related fees, notices, surveyor's sketch & legal description, and recording fees. Deteriorating sections of the wall that are not made safe and continue to be  neglected would be subject to Code Enforcement action. Procedural Considerations: Depending upon the public input provided at this meeting and the final direction given by the City Commission, each of the options stated above will have its own procedural course to implement the option. The City Manager, City Attorney and City staff are prepared to advise the City Commission in more detail on the various procedural considerations after public input and the final direction given by the City Commission. Straw Ballot Considerations: If the City Commission deems it appropriate to poll the residents of Tuscawilla Units 12/12A before deciding which option to select, the City Commission may want to require a non-binding straw poll to gather the formal opinions of the residents. The City has used non- binding straw ballots in the past to collect input from residents on various issues, most recently in 2009 during the planning phase of the Ranchlands Paving Project. Non-binding straw ballots are effective because they allow all property owners the opportunity to provide input, including those who cannot attend public meetings. If the City Commission directs Regular 600 PAGE 9 OF 11 - May 14, 2012 staff to prepare a straw ballot, staff recommends that it be mailed to all 90 property owners in the subdivisions, with each assessed property receiving one vote. Further, staff would also recommend that the City Commission limit the options (maximum of two preferred) to be placed on the straw ballot, so that the ballot and results can be clearly understood. The straw ballot results would be tracked by lot number in order to ensure that each property is limited to one vote. The results of the straw ballot would be reported to the residents and City Commission as part of a regular Commission Agenda Item, at which time the City Commission could provide further direction. FISCAL IMPACT: This agenda item is requesting the City Commission to review all available information and provide final direction related to addressing the potential safety hazard concerns of the Tuscawilla Units 12/12A wall. The financial impact on the City will depend on the final direction given by the City Commission. Estimated financial impacts for the various options are stated above. COMMUNICATION EFFORTS: This Agenda Item has been electronically forwarded to the Mayor and City Commission, City Manager, City Attorney/Staff, and is available on the City’s Website, LaserFiche, and the City’s Server. Additionally, portions of this Agenda Item are typed verbatim on the respective Meeting Agenda which has also been electronically forwarded to the individuals noted above, and which is also available on the City’s Website, LaserFiche, and the City’s Server; has been sent to applicable City Staff, Media/Press Representatives who have requested Agendas/Agenda Item information, Homeowner’s Associations/Representatives on file with the City, and all individuals who have requested such information. This information has also been posted outside City Hall, posted inside City Hall with additional copies available for the General Public, and posted at five (5) different locations around the City. Furthermore, this information is also available to any individual requestors. City Staff is always willing to discuss this Agenda Item or any Agenda Item with any interested individuals. A meeting notice has been mailed to all 90 Tuscawilla Units 12/12A property owners which included a link for downloading or viewing the complete agenda item in advance of the meeting. RECOMMENDATION: Staff recommends that the City Commission: 1.Affirm Staff's conclusion that the Tuscawilla Units 12/12A wall is in disrepair and should be demolished and removed, replaced, or placed on a rehabilitation program for the ongoing repair, maintenance, and periodic upgrade of the wall. 2.Review the options for the Tuscawilla Units 12/12A wall as outlined herein in order to provide final direction related to addressing the potential safety hazard concerns of the Tuscawilla Units 12/12A wall. Regular 600 PAGE 10 OF 11 - May 14, 2012 ATTACHMENTS: Exhibit 1 -Wall Map (1 page) 1. Exhibit 2 - Wall Photograph (1 page) 2. Exhibit 3 - Wall Options Cost Estimate (2 page) 3. Exhibit 4 - CPH Structural Evaluation (12 pages) 4. 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