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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. File No. 1:3--.2113, , �40 :, /�-1 1 i��s�oi;i;.;; i��c:c,c.l�,.a,#• ,v.�-P/,�( �,,,i �,gly•�,�o ca�s..:1�� 6�. �C.�,.�,-•c��%�p�,,� .�-O 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. ME 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. -2- 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 -3- 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. -4- HA11NU 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. -5- 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. EM 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 -7-