HomeMy WebLinkAboutPW Unreinforced Masonry Building Report 1992CITYOF AGENDA ITEM NO: 5
SAN R"AEL MEETING DATE: January 21, 1992
Department of Public Works
[RIE OO IRV TO MAVOO R M0 UTY OOUNUL
SUBJECT: STATICS REPORT ON UNREINFORCED MASONRY ORDINANCE
SUBMITTED BY: ` ' APPROVED BY: 4�lb
D ector oPublic orks (FV) City Manager
FILE REF: 05.01.41.03
01.12.23
B.P.'s
RECOMMENDATION:
Accept Report.
SUMMARY/BACKGROUND:
For the past three years, the San Rafael community has been concerned
about the safety of unreinforced masonry structures in the City of San Rafael.
As required by the State of California, the City has been working to prepare
and adopt a program to "mitigate" the hazards presented by this type of
construction. This report is presented to the Council as an update of staff
efforts and to outline the remaining work to be done.
Unreinforced masonry buildings have been targeted by the State of California
as "potentially hazardous" buildings. Legislation (SB 547) was adopted by the
State requiring local jurisdictions to adopt "mitigation" programs to lessen
the hazard associated with such structures.
In order to fulfill this obligation, staff performed an inventory of the
community's buildings to determine where such structures exist. Owners of
the buildings identified and other interested parties were then notified and
a number of public meetings were held to discuss issues related to a
mitigation program.
It should be noted that community involvement has been sought throughout
the process. A committee of building owners, business owners, engineers,
architects, and other interested parties has provided valuable feedback to
staff. A general meeting of all property owners was held early in the process.
Out of these meetings it was determined that the major issues were the cost
and timing of any required repair work.
To address those issues, it was felt that the next task was to try and reach
consensus on a level of repair which would both reduce the potential for loss
of life and injury while limiting the economic impact on the community. An
ordinance was adopted by the City which required that the property owners
hire an architect or engineer to analyze and report on their building.
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This analysis included a structural analysis of the building which compared
the structure to a set standard and required a cost estimate for the various
items of structural work.
This work was done and it was confirmed that the cost of a complete
retrofit of the buildings could not be supported by the community. Staff has
met with a number of local structural engineers to come up with a list of the
most cost-effective upgrades. This group determined the following measures
to give the most value:
1. Parapet bracing shall be provided.
2. Floors and roofs shall be anchored to their supporting
walls.
3. Open fronts shall be seismically braced.
4. Mortar joints shall be pointed (regrouted)
This proposed level of retrofit will provide a significant increase in public
safety although it is not a complete retrofit. Buildings will still suffer damage
in significant seismic events. Life safety is substantially improved, not
guaranteed.
The level of required repairs will still be extremely expensive. Only
structural work has been considered in the estimates provided by the
property owners, and it alone is a significant amount. Numerous associated
costs exist - possibly loss of rental income, architectural costs, financing
costs, etc. These costs were beyond the scope of the study as they vary with
each building's situation and each owner's financial capacity. It is recognized
by staff that the cost of repairs to a particular building may exceed the ability
of the building owner to finance the cost of repairs. Staff has been
concerned with this and has considered it in arriving at the program
suggested.
The scope of the program was designed, in part, to limit these associated
costs as much as possible. The level of retrofit required should allow tenants
to continue business even though they may be inconvenienced thus limiting
loss of income to the tenants and property owners. Additional upgrade costs
to building systems will be at the discretion of the owner and not required
by the City. (It should be noted that disabled access, as mandated by State
and Federal law, will have to be addressed on an individual basis. No blanket
exemption can be granted).
As written, the draft ordinance allows 2.5 to 4 years to complete the repair
work. This timing depends on the use of the building. As written, owners of
buildings with the most occupants would be notified first.
A copy of the current draft of the proposed ordinance has been included
with this report. Staff proposes to hold a general property owners' meeting
for additional input on the draft and then bring the ordinance to the Council
for the first reading at the February 17, 1992 Council meeting.
Additional items of concern have been raised and the Council may wish to
consider them when the ordinance is agendized for adoption:
1) Will the required repair work cause the loss of development
rights if a building is demolished or sits empty due to the
requirements of the ordinance?
2
2) Will the City Council waive fees for repairs required by the
Ordinance which exceed the $1,000.00 deposits which have
been paid? This fee waiver is requested only for required work.
3) Would the Council consider an extension of time where a
tenant's lease will expire within 3 to 5 years of the normally
effective date of the ordinance?
ENCLOSURES: (1)
3
DRAFT
ORDINANCE NO.
ORDINANCE OF THE CITY OF SAN RAFAEL AMENDING IN ITS
ENTIRETY CHAPTER 12.40 OF THE MUNICIPAL CODE OF THE
CITY OF SAN RAFAEL SETTING FORTH AN UNREINFORCED
MASONRY BUILDING MITIGATION PROGRAM
WHEREAS, the San Rafael General Plan 2000 has a seismic safety element
which calls for the City to implement measures to encourage the rehabilitation or
elimination of structures susceptible to collapse or failure in an earthquake (Seismic
Safety Policy S-12); and
WHEREAS, State law (SB 547) requires that the City Council adopt a
mitigation program pertaining to existing unreinforced masonry buildings.
follows:
NOW, THEREFORE, the City Council of the City of San Rafael does ordain as
DIVISION I, Chapter 12.40 of the San Rafael Municipal Code is amended in
its entirety to read as follows:
Chapter 12.40
UNREINFORCED MASONRY BUILDING MITIGATION PROGRAM
DIVISIONs:
12.40.010 Purpose
12.40.020 Scope
12.40.030
12.40.040
12.40.050
12.40.060
12.40.010 PURPOSE
Definitions
Rating Classifications
General Requirements
Administration
The purpose of this chapter is to promote public safety and welfare by
reducing the risk of death or injury that may result from the effects of earthquakes on
unreinforced masonry buildings. Such buildings have been widely recognized for
sustaining life -hazardous damage, including partial or complete collapse during moderate
to strong earthquakes.
The provisions of this chapter are intended as minimum standards for
structural seismic resistance established primarily to reduce the risk of life loss or injury.
Compliance with these standards will not necessarily prevent loss of life or injury to
prevent earthquake damage to rehabilitated buildings. This chapter does not require
alteration of existing electrical, plumbing, mechanical or fire safety systems unless they
constitute a hazard to life or property.
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This chapter provides systematic procedures and standards for identification
and classification of unreinforced masonry buildings based on their present use.
Priorities, time periods and standards are also established under which these buildings
are required to be structurally analyzed and repaired.
Qualified Historical Buildings shall comply with the State Historical Building
Code (SHBC) established under Part 8, Title 24 of the California Administrative Code.
12.40.020 SCOPE
The provisions of this chapter shall apply to all buildings which on the
effective date of this ordinance have at least one unreinforced masonry bearing wall as
defined herein.
The Building Official, or his authorized representative, shall create and
maintain a list of the existing unreinforced masonry buildings in the City of San Rafael.
This list shall be kept current and additions and deletions of buildings from this list shall
be made at any time changes in building status are determined.
EXCEPTION: This chapter shall not apply to detached one or two family dwellings,
detached apartment houses containing less than 5 dwelling units which are used solely
for residential purposes, and warehouses.
12.40.030 DEFINITIONS
For purposes of this chapter, the applicable definitions in the Uniform
Building Code (1) shall also apply:
ESSENTIAL BUILDING: Any building housing a hospital or other medical facility having
surgery or emergency treatment areas; fire or police stations; municipal government
disaster operation and communication centers.
HIGH RISK BUILDING: Any building, not classified as an essential building, having an
occupant load of 100 or more, as determined by DIVISION 3302(a).
EXCEPTION: A high risk building shall not include the following:
1. Any building have exterior walls braced with masonry crosswalls or wood
frame crosswalls spaced less than 40 feet apart in each story. Crosswalls shall be defined
as walls having full story height with a minimum length of 1-1/2 times the story height.
2. Any building used for its intended purpose, as determined by the Building
Official, for less than 20 hours per week.
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MEDIUM RISK BUILDING: Any building, not classified as a high risk building or an
essential building, having an occupant load of 50 occupants or more as determined by
DIVISION 3302(a).
LOW RISK BUILDING: Any building, not classified as an essential building, having an
occupant load of less than 50 occupants as determined by DIVISION 3302(a).
Open Front is an exterior building wall plane on one side only without vertical elements of
the lateral force resisting system in one or more stories.
Pointing is the partial reconstruction of the bed joints of an unreinforced masonry wall as
defined in U.B.C. Standard No. 24.42.
Unreinforced Masonry Bearing Wall. A URM wall which provides the vertical support for a
floor or roof for which the total superimposed load exceeds 100 pounds per linear foot of
"'fes
(1) For the purposes of this chapter all references to the Uniform Building
Code shall refer to the 1985 edition.
12.10.040 RATING CLASSIFICATIONS
The rating classifications shown in Table No. 12.40-A below are hereby
established and each building within the scope of this chapter shall be placed in one such
rating classification by the Building Official. The total occupant load of the entire building
as determined by DIVISION 3302(a) shall be used to determine the rating classification.
EXCEPTION: For the purpose of this chapter, any buildings, portions of which are
constructed to act independently when resisting seismic forces, may be placed in
separate rating classifications.
TABLE NO. 12.40-A
RATING CLASSIFICATIONS
TYPE OF BUILDING CLASSIFICATION
Essential Building I
High Risk Building II
Medium Risk Building III
Low Risk Building IV
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12.40.050 GENERAL REQUIREMENTS
a) All buildings subject to the provisions of this chapter shall be seismically
strengthened as follows:
1) Parapet bracing shall be provided.
2) Floors and roofs shall be anchored to their supporting walls.
3) Open fronts shall be seismically braced.
4) Mortar joints shall be pointed.
5) Any special site-specific conditions felt by the Building Official on the
designer to be an immediate hazard to public health and safety shall be
corrected.
b) The design standard for compliance with the items listed in DIVISION
12.40.050(a) shall be in conformance with DIVISION 12.40.050(d).
c) Should a property owner wish to strengthen his building beyond the requirements
of DIVISION 12.40.050(a) such additional work shall comply with the requirements
of DIVISION 12.40.050(d).
d) Unreinforced masonry buildings to be strengthened pursuant to DIVISION
12.40.050(a) Items (1) thru (5) and 12.40.050(c) shall be designed and repaired in
compliance with the applicable DIVISIONS of Appendix Chapter 1 of the 1991
edition of the Uniform Code for Building Conservation or other recognized standard
acceptable to the Building Official.
Deviations from these standards may be made if, in the opinion of the Structural Engineer
and the Building Official, compliance with the standards would result in extreme hardship
and the deviations are not likely to result in damage from earthquake forces that would
injure occupants or passersby.
e) Time limits for compliance shall be as specified in Section 12.40.060(a) and (b).
12.40.060 ADMINISTRATION
a) Service of Order. The Building Official shall issue an order to the owner of each
building within the scope of this chapter in accordance with the maximum time
periods for service of such orders set forth in Table No. 12.40-B. The maximum
time period for the service of such orders shall be measured from the effective
date of Chapter 12.40.
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CLASSIFICATION
I
(Highest Priority)
II
III
IV
(Lowest Priority)
TABLE NO. 12.40-B
SERVICE PRIORITIES
UCCuk'ANT
LOAD
Any
100 or more
50 to and including 99
Less than 50
MAXIMUM'11M61J6WUll5 rUK
SERVICE OF ORDER BY CITY
0
180 days
2 years
2 years
b) Time limits for compliance.
The owner of a building within the scope of this chapter shall comply with the
requirements set forth above by submitting to the Building Official:
(1) Within 270 days after the service of the order, a structural analysis, which is
subject to approval by the Building Official, and which shall demonstrate that
the building meets the minimum requirements of this Chapter; or
(2) Within 270 days after the service of the order, a structural analysis, plans,
and a building permit application for the proposed structural alterations of
the building necessary to comply with the minimum requirements of this
chapter; or
(3) Within 270 days after the service of the order, plans for the demolition of
the building.
After plans are submitted and approved by the Building Official, the owner shall obtain a
building permit, commence and complete the required construction or demolition within
the time limits set forth in Table No, 1240-C. These time limits shall commence from
the date the order is served in accordance with DIVISION 12.40.060(a) and (c).
TABLE NO. 12.40-C
TIME LIMITS FOR COMPLIANCE
REQUIRED ACTION OBTAIN BUILDING PERMIT COMMENCE CONSTRUCTION COMPLETE CONSTRUCTION I
BY OWNER WITHIN WITHIN WITHIN
Complete Structural 1 year 180 days (1) 1 year (1)
Alterations or (from service of
Building Demolition order)
(1) Measured from date of building permit issuance. All the other time limits are
measured from the date of the order.
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c) Contents of Order. The order shall be in writing and shall be served by certified or
registered mail upon the owner as shown on the last equalized assessment, and
upon the person, if any, in apparent charge or control of the building. The order
shall specify that the building has been determined by the Building Official to be
within the scope of this chapter and, therefore, is required to meet the minimum
seismic standards of this chapter. The order shall specify the rating classification
of the building and shall be accompanied by a copy of DIVISION 12.40.050 and
DIVISION 12.40.060 which sets forth the owner's alternatives and time limits for
compliance.
d) Appeal from Order. The owner of the building may appeal to the City Council,
sitting the Board of Appeals, the Building Official's initial determination that the
building is within the scope of this chapter. Such appeal shall be filed with the
board within 60 days from the service date of the order described in DIVISION
12.40.060(a) and (c). Any such appeal shall be decided by the board no later than
60 days after the date that the appeal is filed. Such appeal shall be made in writing
upon appropriate forms provided therefor, by the Building Official and the grounds
thereof shall be stated clearly and concisely.
Each appeal shall be accompanied by a filing fee as set forth in the municipal code.
Appeals or requests for slight modifications from any other determinations, orders
or actions by the Building Official pursuant to this chapter, shall be made in
accordance with the normal appeal procedures established in this code.
e) Recordation. At the time that the order is served, the Building Official shall file
with the office of the County Recorder a certificate stating that the subject building
is within the scope of Chapter 12.40 - Unreinforced Masonry Building Mitigation
Program. The certificate shall also state that the owner thereof has been ordered
to structurally analyze the building and to structurally alter or demolish it where it
is not found to comply with Chapter 12.40.
If the building is found not to be within the scope of this chapter, or as a result of
structural alterations, is found to be structurally capable of resisting minimum
seismic forces required by this chapter, or is demolished; the Building Official shall
file with the office of the County Recorder a certificate terminating the status of the
subject building as being classified within the scope of Cahpter 12.40 -
Unreinforced Masonry Building Mitigation Program.
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f) Program status reports to the City Council. The Building Official shall submit an
annual report to the City Council on the status of the Unreinforced Masonry
Building Mitigation.
DIVISION 2. If any provision of this Ordinance or its application is held
invalid by a court of competent jurisdiction, such invalidity shall not affect other
provisions, DIVISIONs, or applications of the Ordinance which can be given effect without
the invalid provisions or applications, and to this end any phrase, DIVISION, sentence, or
word is declared to be severable.
DIVISION 3. This Ordinance shall be published once in full before its final
passage in a newspaper of general circulation, published, and circulated in the City of San
Rafael, and shall be in full force and effect thirty (30) days after its final passage.
ALBERT J. BORO, Mayor
Attest:
JEANNE M. LEONCINI, City Clerk
The foregoing Ordinance No. was read and introduced at a
meeting of the City Council of the City of San Rafael, held on the day
of , 1991, and ordered passed to print by the following vote, to wit:
AYES: COUNCILMEMBERS:
NOES: COUNCILMEMBERS:
ABSENT: COUNCILMEMBERS:
and will come up for adoption as an Ordinance of the City of San Rafael at a
meeting of the Council to be held on the day of , 1992.
JEANNE M. LEONCINI, City Clerk
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