Construction On Adelanto Detention Facility Ends $29 Million Over Budget

(March 25)  With the project nearing completion, the construction cost on the Adelanto Detention Center this week increased for the twenty-eighth and twenty-ninth times, escalating to  $120,419,790.
The construction bill on the project was originally slated at $90,951,937.
Moreover, the total price tag on the project, including engineering, architectural, licensing and inspection costs, has reached $145,451,910,  which is $25.45 million more than the $120 million projected to be the project’s overall price including a ten percent cost overrun contingency when it was approved in 2010.
The expansion will add 1,392 new beds to the existing 706-inmate capacity of the facility, which was  formerly privately owned and run while known as Maranatha Prison. The owner of that facility, Maranatha Private Corrections, a part of the Moreland Family Trust, in April 2005 sold the prison, located on 9438 Commerce Way in Adelanto, to the county of San Bernardino for $31.2 million.
The county initially envisioned shouldering the lion’s share of the cost of the project, but in March 2008 the board of supervisors approved the submittal of a proposal to the State Correction Standards Authority requesting available funding of up to $100,000,000 to cover 75 percent of the cost to construct 1,368 additional jail beds at what was dubbed the Adelanto Detention Center. In May 2008, the county was conditionally awarded the requested $100 million for the expansion, and was ranked first on the list of public entities to be conditionally awarded funds available under a state detention facility financing law, AB900. In July 2010, the board gave conceptual approval to the project and established the various obligations of the county, California Public Works Board, and the California Department of Corrections and Rehabilitation as to the project’s general terms and termination, cost, cost sharing, scope, schedule, bidding and construction, post project completion and records retention for the project.
The county held a bidding competition that fall and in December 2010 awarded a $90,951,937 contract to Bellevue-Washington-based Lydig Construction as the low bidder, after making a finding that  the bids received from S.J. Amorosa Construction Co., Inc. of Costa Mesa, California and Flintco of Folsom, California to be non-responsive.
The overall project cost at that time was put at $120,419,790, which included a ten percent contingency.
Since that time, the cost of the project, which is to consist of three four-story housing buildings plus a support building that includes booking and holding cells and a medical clinic, has consumed the state money and eaten up the ten percent contingency as well and risen significantly beyond that, led by contract increases with Lydig.
Eight months after Lydig was granted the original $90,951,937 contract, the county amended the contract to pay Lydig another $448,516 to install approximately 3,000 linear feet of 5” conduit, pull boxes and electrical vaults as required by Southern California Edison.
On December 13, 2011, a second amendment to the contract was made for demolition and installation of concrete and asphalt associated with the rerouting of utilities and electrical duct banks as well as the modification to 124 handicap combo units at a cost of $303,773.
On April 24, 2012, a third amendment to the contract relating to modifications to lengthen holding cell benches and state fire marshal-mandated design modifications to the construction elevated the contract by $834,076. On September 11, 2012 a fourth amendment calling for the addition of handicap desks to the jails dayrooms, stainless steel well casing for the well and state fire marshal-mandated seismic upgrades to the fire protection lines set taxpayers back another $557,668. On February 23, 2013, the county amended the contract for the fifth time, in order to provide state fire marshal-mandated changes to the smoke control evacuation and automatic fire sprinkler systems, increase in number and size the heating ventilation and air conditioning structural roof supports as well as make further modifications mandated by the state fire marshal and various other agencies, providing Lydig with another $2,472,388 enhancement to the contract. On May 21, 2013 the county made a sixth amendment to Lydig’s contract, this time relating to labor and materials for the revision of the smoke control systems and fire protection systems, to, in the words of county director of architecture and engineering Carl Alban, “convert the specified fire smoke dampers to smoke dampers as part of the revisions to the smoke control system” in the amount of $5,063,392.
Also on May 21, 2013 the county approved amendment No. 7 to the contract to cover labor and materials for the added treatment systems associated with the water well, not including the potential costs of schedule impacts along with labor and materials for the purchase of the switch gear and installation of conduit from the service yard to the existing pull boxes, as required for the installation of a third electrical service at an added cost of $1,818,807.
On June 25, 2013, the board of supervisors approved an eighth amendment to the contract in the amount of $6,004,736 to cover labor, materials, labor impacts and acceleration costs related to the revision of the smoke control systems and fire protection systems, a portion of the cost of which was covered with Amendment No. 6.
Also on June 25, 2013, the board also signed off on a ninth contract amendment, one for $537,336, to cover labor and materials for the added treatment systems associated with the water well, not including the potential costs of schedule impacts. The total cost of the treatment systems was $2,037,336, which includes the $1.5 million allowance approved as part of the seventh amendment to the contract.
On July 23, 2013, the board approved a tenth amendment in the amount of $778,340 to complete the procurement of a fire booster pump to increase flow and pressure of the fire protection systems and the relocation of mechanical piping and electrical lines to allow for the installation of additional fire risers and a 2-hour rated ceiling assembly in the stairwells between the detention center’s housing units.
On August 6 2013 the board approved an eleventh amendment, providing Lydig with $709,533 for the installation of a third electrical service necessary to increase the available power for providing capacity for future upgrades of the facility; the installation of a fire booster pump to ensure the proper flow and functioning of the fire protection systems; the expedited procurement and delivery of smoke control panels and supervisory panels necessary to achieve the scheduled project completion date; and the relocation of smoke detectors in the dormitory sleeping areas as required by the Board of State and Community Corrections.
On November 11, 2013 the board approve a twelfth amendment to the contract for $415,952 to add twenty-seven dampers to the smoke evacuation ductwork, modify the glazing stops at master control, install fire wrap to ducts and dampers at specified locations and separate the dry zones at the housing units.
On December 17, the board of supervisors approved a thirteenth amendment in the amount of $304,450  for modifications to the electrical service yard, fire sprinkler system isolation in the support building and constructing foundation and adding position indication valve and monitoring devices for the fire booster pump, relocating  fire/smoke dampers, revising exhaust duct risers in the center core of the housing units and adding a control module to the master control fire shutter.
On January 14, 2014, the board approved a fourteenth amendment for $161,795 for the addition of elevator screen counter weight protection as required by the state elevator inspector, fire alarm revisions related to the elevator shut trip and recall as required by the state elevator inspector and state fire marshal and fire alarm revisions related to the duct detectors as required by National Fire Protection Association codes.
In addition to those previous contract amendments, the county also made several expensive change orders, including one for $2,101,536 on  August 23, 2011 that called for upgrading the security electronics in the existing facility and to provide touch screens, digital intercoms, a camera system and increased video storage capabilities, install frosted security glazing in lieu of the standard clear glazing specified in the sleeping rooms and install an anti-MRSA and prime coat finish on the floors and walls at the support building. It then made a second change order on December 13, 2011 involving an added cost of $2,392,443 to install a card reader system in the housing units to be utilized by sheriff personnel, purchase scheduling licenses for video visitation kiosks; and upgrade the roofing system to a single ply system.
On April 24, 2012 the architecture and engineering division sought from the board of supervisors approval for a third change order that called for installing an anti-MRSA coating to interior handrails in the dayrooms of the housing units and the installation of various security electronics, electrical and plumbing modifications and enhancements at a cost of $824,237.
On September 11, 2012, the board acceded to a fourth change order, at a cost of $902,801, for the addition of detention ceilings at the 32-bed dorms; modifications to center core casework, guardrails and exhaust systems, modification of the roof system and various utility modifications and enhancements.
On February 26, the fifth change order, one for $367,734, provided electrical power and venting for dryers and various structural, utility and mechanical modifications to the new expansion and existing facility.
On May 21, the sixth change order, at a cost of $47,651, called for the planting of Yucca Rostrata Trees in lieu of the specified owner-furnished Yucca Trees which were no longer available; modifications to the seismic joints between the housing units; providing a remote maintenance bypass switch for the security electronics system; deleting the painting of the interior of the mezzanine level mechanical chases; and providing security metal panels to conceal electrical conduits in two of the buildings.
On June 25, 2013, the board approved an eighth amendment to the contract at a cost of $6,068,128 to cover labor, materials, labor impacts and acceleration costs related to the revision of the smoke control systems and fire protection systems. This brought the total cost of repairing the smoke control systems to $11,068,128, which includes the $5,000,000 allowance approved as part of the sixth amendment to the contract.
The board on June 25, 2013 also approved a seventh change order, entailing an added cost of $551,910, to make security improvements requested by the sheriff’s department; modifications to the phone and data cabling requested by the county’s information services department to improve facility communication systems; and miscellaneous revisions related to construction.
The board on July 23, 2013 also approved an eighth change order, increasing the contract amount by $252,198 to compensate Lydig for the labor and materials related to constructability issues and include modifications to doors, frames, hardware, stair supports, a fire shutter, the installation of a drip pan above electrical panels, and modifications to the electrical power supply for the security systems, as well as removing and replacing the existing asphalt pavement in the parking lot south of the existing facility.
On August 6 2013, the board approved a ninth change order costing $325,568 to make modifications of the detention ceilings and drywall in various areas of the housing units, light fixture modifications at the center core of the housing units. make miscellaneous modifications of the fire alarm and smoke detector relocations, light fixture revisions for the dormitory ceilings, add fire alarm devices in the elevator machine, hard wire the dryers in the compressor room, perform programming and engineering for added functions in the fire/smoke control system, add thirty-nine site bollards, add countertop support brackets in the center core of the housing units, add decomposed granite at specified site locations, and add sidewalks and a ramp between the new housing units and the existing facility.
On September 24, 2013, the board approved a tenth change order with Lyding in the amount of
$307,630 to add a touch screen building automation system and UPS backup, add flooring at the passenger and freight elevators, add an eye wash station at the water facility,  provide a set of spare breakers for the main electrical switchgear, and handle miscellaneous constructability issues.
On November 5, 2013, the board approved an eleventh change order in the amount of $129,151 for relocating the duct detectors to an exterior application, installing four additional phone lines in the support building, adding ten privacy screens in the recreation yards, modifying the handrails in the mechanical chases, and modifications to the power and sprinkler heads in the master control room.
On December 17, 2013 the board approved a twelfth change order for $52,413 to replace 2 doors in housing unit No. 4’s group room, add and relocate security cameras, replace existing gates in the electrical service yard, and make modifications of the programmed water technology system.
On January 14, 2014, the board approved a thirteenth change order for $217,856 which provided for modifying the grading of the swale on the north side of the facility, implementing the radio system re-design requested by the county’s information services division and the sheriff, modifications of the water facility and the modification of the existing planter on the south side of the facility.
This week the board approved a fifteenth amendment to the original contract, costing $336,682 to provide an additional concrete pad at the third electrical service, make modifications at the fire booster pump, relocate the fire/smoke dampers and make additions to the fire alarm system, make modifications to the elevators, extend flood insurance and mechanical warranties, make modifications to the safety, sobering and holding cells and provide credit for unused overtime allowances.
This week the board of supervisors also approved the fourteenth change order on the project, one for $336,682 to cover the cost of correcting overcurrent issues, improvements to water facility operations, balancing of the smoke control system, perform load bank testing of the generators and carry out various corrective work.
There has thus been a total of   $20,657,043 worth of amendments to the project contract and $8,810,810 worth of change orders, totaling $29,467,853 in cost overruns on the construction portion of the project.
In addition to the amendments to and change orders made on the construction contract, there have been amendments and change orders to other service providers on the project.
The firm of  Hellmuth, Obata & Kassabaum, Incorporated, based in Culver City, was originally given a $4,466,000 contract to provide architectural service on the project. Nine amendments later, Hellmuth, Obata & Kassabaum’s contract has reached $10,438,396, an increase of $5,972,396.
C.H.J. Incorporated of Colton was hired under a $413,857 contract to perform testing and inspection. After five contract amendments, C.H.J. has taken on another $1,920,546 of work so that the total amount that company has received under the revised contract is $2,334,403.
The adjusted project budget of $144,000,000 is comprised of  design and construction administration costs of $12,865,750;  Lydig’s construction cost of $120,419,790; additional construction costs of $350,000; testing, inspection, labor compliance and commissioning costs of $3,545,005; utilities and permitting costs of $1,457,028; furnishings, fixtures and equipment costs of $3,300,000; telephone and data costs of $250,000; miscellaneous project costs of $260,000; and a contingency allowance of $1,552,427. In addition, the sheriff is anticipating transition planning costs of $1,451,910, bringing the total estimated project cost to $145,451,910.
There has been criticism and questioning of the cost overruns among selected pockets of county residents. Neither county executive officer Greg Devereux nor the board of supervisors has made an issue of the cost overruns and the board of supervisors has unanimously approved all 15 contract amendments and all fourteen change orders.
Carl Alban the director of the county’s architecture and engineering division this week told the Sentinel, “The original budget on the project was $120 million. With contract overruns we are looking at $145 million and change. There have been a number of change orders that are a combination of owner-directed changes, minor corrective issues that have to take place where parts and pieces do not line up and we had to modify things to make that work.  The major cost upgrades have come about as a result of unforeseen conditions or mandates by outside parties over which we have no control. When the state fire marshal directs that changes are to be made, we do not have any option on whether to do those changes. We must do them. We have the same with the board of corrections. When they do a walk-through of the job site and direct changes, we do not have a choice. In other cases, third parties we are working with may mandate changes, as in the case of utility companies. Southern California Edison required us to install boxes, vaults and line.”
Alban said some of the changes were self-imposed.
“One change we elected to do is the fire pump,” Alban said. “We did that because the water flow and pressures we were getting from the city of Adelanto were not consistent. We elected not to gamble with the certification of the facility and the safety of staff and inmates. If we had a fire occur we did not want to have to rely on flow and pressure that would not be adequate for the [fire suppression] sprinklers. We also had issue with wells and found problems with the water supply. We added additional treatment facilities to deal with that.”
Asked if the number of amendments and change orders to the Adelanto Detention Center were typical of county projects, Alban said, “First off, we don’t do a lot of projects of this magnitude. In my tenure we have had the Arrowhead Regional Medical Center and the West Valley Detention Center. There were a fair number of change orders and amendments on both projects,” he said, but indicated they were fewer than with the Adelanto Detention Facility. He said part of the change came about because of the substantial number of state mandates that came about as a consequence of the state funding used to construct the project. “The circumstances here were unique,” he said. “The design started a little different than it ended up. The $100 million changed the dynamics of the construction. There was  almost a two year period between time we were advised of the availability of the funds from AB900 and the time we got the funding. That delay was problematic for us as well as the design team. Members of the project team come and go and the design team members change. Over that two years, code requirements changed. There were a number of things that occurred during the period that were unique to this project and resulted in amendments and change orders and the cost overruns.”
Alban said that despite the complications, “It was worth it to the taxpayers. We ended with a $100 million cost offset, but you do have issues associated with that.”
His division has, Alban said, “issued a notice of substantial completion” on the project, “so it can be used for its originally designed intention. It already is functioning. Somewhere in the range of 800 to 900 inmates are currently housed in the new expansion. For all intents and purposes, the project is completed, but from a technical standpoint, there are still dibs and dabs that need to be completed and we will not issue a notice of completion until those are fully taken care of to our satisfaction. There are things the contractor is finishing up.”
That notice of completion will be delivered, Alban said, “in late April or early May.”

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