THE CITY OF NEW YORK DESIGN CONSTRUCTION EXCELLENCE

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July 2007 Progress ReportTHE CITY OF NEW YORKDESIGN CONSTRUCTIONEXCELLENCE

July 2007 Progress ReportTHE CITY OF NEW YORKDESIGN CONSTRUCTIONEXCELLENCE

INTRODUCTIONDesign Construction Excellenceproject locationsDESIGN CONSTRUCTION EXCELLENCE

INTRODUCTIONJuly 2007Dear Friends:From the grand entrances of our public libraries to the greatgreen expanse of our parkland and open spaces, no city is moredefined by its urban design than New York. Three years ago, the ArtCommission called for a multi-agency effort to change the paradigmof the public building process, and build the landmarks of tomorrow.Today, I am pleased to report that, under the leadership of theDepartment of Design and Construction, the Design ConstructionExcellence (D CE) initiative has seen its most successful year yet.Since our last report, the initiative has continued to elevatedesign and construction standards and helped to produce thoughtful,creative projects in every borough. The new Office of EmergencyManagement headquarters in Brooklyn and the Queens BotanicalGarden have achieved top level Leadership in Energy and EnvironmentalDesign (LEED) certification and stand as vivid examples of what wecan accomplish with bold thinking, and a commitment to meeting thebiggest challenges of our time. Adopting the spirit of PlaNYC—ourvision for a greener, greater New York—the D CE will continue to ensurethat our metropolis remains habitable and hospitable as it continuesto grow and evolve.Thank you to everyone involved in the initiative for the supportand contributions that remain critical to our success. You continue tohelp us build a better future for all New Yorkers—the future we all deserve.Sincerely,Michael R. BloombergMayorJ U LY 2 0 0 7 P R O G R E S S R E P O R T

TABLE OF CONTENTS03INTRODUCTIONMayor’s Letter07–17POLICY INITIATIVESOverview(A) Procurement Strategies(B) Design and Planning Phase Strategies(C) Construction Phase Strategies(D) Education and Evaluation Strategies DESIGN CONSTRUCTION EXCELLENCE19–65FEATURED PROJECTS121ST PrecinctCentral Harlem Health CenterDHS Family CenterElmhurst Branch LibraryEngine Company 259Ferry Point Park Comfort StationFlight 587 MemorialGlen Oaks Branch LibraryHarris Park BallfieldsIndian Lake Restoration, Crotona ParkMontessori Progressive Learning CenterMullaly Park PlaygroundPedestrian BridgesPike Street YardPoe Park Visitors’ CenterQueens Central LibraryQueens Hospital EMS StationQueens Museum of ArtRescue Company 3Riverside Health CenterStapleton Branch LibraryStaten Island Children’s MuseumWest 59th Street Recreation Center

PROJECTS IN DEVELOPMENTBronx River Art CenterBrooklyn Historical SocietyChelsea Health CenterConference House ParkDisaster Response Equipment andApparatus DepotEast 38th Street Storage andMaintenance FacilityEngine Company 217/Engine Company 235Engine Company 239Engine Company 285Flushing Town HallForest Hills Community HouseGlendale Branch LibraryGreenpoint EMS StationJerome Gunhill Municipal Parking GarageJerome YardKent Avenue Shaft Maintenance BuildingKings County Criminal CourthouseKings County Supreme CourthouseLadder Company 8Macon Branch LibraryMariners Harbor Branch LibraryMind Builders Creative Arts CenterNew York Public Library Humanities andSocial Sciences Library MechanicalPenthouseNew York Public TheaterNon-Traditional Employment forWomen Training FacilityPS1 Contemporary Arts CenterQueens Botanical Garden EntriesQueensboro Hill Branch LibraryRichmond District Health CenterRidgewood Branch LibraryRidgewood Bushwick Youth CenterRochdale Village Branch LibrarySnug Harbor Cultural CenterSnug Harbor Cultural Center Building EExterior RenovationSnug Harbor Cultural Center Building FInterior RenovationSoundview ParkSt. James ParkStaten Island Institute of Arts and SciencesVan Cortlandt Park74KEYSeeking LEED ratingTABLE OF CONTENTS67–73Percent for Art participantACArt Commission Award recipientACKNOWLEDGEMENTSJ U LY 2 0 0 7 P R O G R E S S R E P O R T

DESIGN CONSTRUCTION EXCELLENCE

(A) PROCUREMENT STRATEGIES: INNOVATIVE PROCUREMENT OF DESIGN SERVICESA1 RFP FOR ON-CALL DESIGN SERVICES FORSMALL FIRMS AND GENERIC REQUIREMENT ContractsA2 TWO-STAGE RFP FOR PROJECT SPECIFIC DESIGN SERVICES(B) DESIGN AND PLANNING PHASE STRATEGIESB1 USE OF PROFESSIONAL PEERSB2 BUDGET PROCESS INITIATIVE(C) CONSTRUCTION PHASE STRATEGIESC1 PARTNERINGC2 Defined Quantity ContractingC3 Pre-Qualification of Construction Contractors(D) EDUCATION AND EVALUATION STRATEGIESD1 CONTINUING EDUCATIOND2 PROCUREMENT EVALUATIOND3 Design Quality Indicator ProgramJ U LY 2 0 0 7 P R O G R E S S R E P O R T

POLICY INITIATIVES(A)PROCUREMENT STRATEGIES:INNOVATIVE PROCUREMENT OFDESIGN SERVICESThe following are descriptions of innovative procurement strategies that were used in thepilot projects. At the end of last year, these methodologies became part of the ProcurementPolicy Board (PPB) rules, and, as of December 2006, are now the required procurementmethodologies for “qualification based selection” (QBS) of architectural and engineering firmsfor City projects. Under this method, the City seeks to select firms based on qualifications,contemporary vision and experience, and to pay fair and reasonable fees for design services.The result has been to increase competition for City public projects by attracting a widerpool of entrants and securing higher levels of service. Previously, PPB rules had recognizedcompetitive sealed proposals as the preferred method for awarding contracts. Historically,the application of this method by City agencies relied heavily on price competition, whichunintentionally had a deterring effect on firms’ desire to participate, driving fee levels belowthe actual cost of providing services and resulting in poor service delivery. DESIGN CONSTRUCTION EXCELLENCE

A2 TWO-STAGE RFP FOR PROJECTSPECIFIC DESIGN SERVICESIn 2007 alone, a total of 237 firmsparticipated in this new selection process, resultingin the award of 32 contracts. The process involvesan open Request for Proposals (RFP) containinga pre-determined fee curve as the pricing forall services to be provided under the contract.Selection is made by an evaluation committee,which includes at least one outside professionalpeer. Selection is based on qualifications andthe quality of relevant experience. Awards aremade to the highest ranked firms. Following theaward of the contracts, all contract holders areinvited to submit project-specific proposals.The proposals are evaluated by the committeeand ranked on their technical merits.This strategy substantially differs fromprevious methods by allowing the selectionto take place without cost being the overridingconsideration. However, the requirement fora fair and reasonable cost is addressed by thepre-determined fee curve.This method has become the standardfor requirement contracts and was the methodused by DDC to procure a new set of twentyfour small firms for architectural and engineeringservices, eight firms for larger architecturaland engineering projects, and for the selectionof eight construction management firms tosupport the agency’s building projects.After piloting five projects during 2005and 2006, this methodology became standardfor project specific Request for Proposals (RFPs) in2007. These RFPs tend to be the largest and mostcomplex in DDC’s portfolio and, in 2007, includedthe procurement of the backup 911 facility (PSAC II)and the new Police Academy.This method begins with an open RFP,requesting proposers’ qualifications and relevantexperience. For the first stage, an evaluationcommittee, including at least one outsideprofessional peer, reviews portfolios and ranksthe submissions, establishing a short-list.For the second stage, the evaluationcommittee invites the top-ranked proposers (theshort-list) to supplement their submissions witha specific approach to the task, which includesa presentation to and interview with the evaluationcommittee, which then ranks each short-listedfirm. At the conclusion of the second stage, the Citycommences fee negotiations with the highesttechnically ranked firm. If this negotiation fails toachieve a fee considered reasonable by bothparties, negotiations begin with the next highestrated proposer, until an agreement is reached.This strategy substantially differs fromprevious methods by allowing selection of the bestqualified firm to occur prior to cost consideration.However, the requirement for a reasonable costis preserved in that the failure to agree on a fee withthe top ranked firm within a set time period resultsin rejection of that firm and the initiation of feenegotiations with the next highest ranked firm.POLICY INITIATIVESA1 RFP FOR ON-CALL DESIGN SERVICESFOR SMALL FIRMS AND GENERICREQUIREMENT CONTRACTSJ U LY 2 0 0 7 P R O G R E S S R E P O R T

POLICY INITIATIVES(B)DESIGN AND PLANNING PHASESTRATEGIESPrograms from DDC Peer Review events10DESIGN CONSTRUCTION EXCELLENCE

B2 BUDGET PROCESS INITIATIVEThis year, projects using the Peer ReviewProcess included the Elmhurst Branch Libraryreviewed by Deborah Berke & Partners Architectsand Pei Cobb Freed & Partners; the RichmondDistrict Health Center, reviewed by Swanke, Hayden,Connell Architects; and the Riverside HealthCenter reviewed by FXFOWLE. The Mayor’s Officeof Contract Services maintains a register ofvolunteer professional peers, with expertise in suchfields as architecture, landscape, urban designand planning, engineering, construction and publicart. Peers attend a presentation at the beginning ofthe design process and provide independent reviewand criticism of the design proposal. Peers returnduring the later stages of design to provide furtherinput to the process.DDC has been using design-phase peerreview for several years, and developed a protocolfor the process which it uses for its own portfolio.DDC acts as a technical advisor to other agencies,helping them develop peer review programs.For information and a list of ProfessionalPeers, please visit www.nyc.gov/moc.A comprehensive needs assessmentfor New York City’s three library systems, the QueensLibrary, the Brooklyn Public Library, and the NewYork Public Library, was launched in the fourthquarter of 2006. The data gathered provided a basisfor capital planning and aided in early-stagealignment of project scope and budget. This pilotproject has now been tested and is being preparedfor implementation, scheduled for 2008.The quality of design and constructionis to some extent dependent on accurateassessment and definition of the scope of theproject to be undertaken. Imprecise scope definitionleads to inadequate funding and potentialmisunderstanding among the participants asto the planned delivery of the project.In 2007, a second budget initiative is alsounderway between the Department of Parks andRecreation (DPR) and the Office of Management andBudget. A multi-vendor requirement contract for testborings for DPR sites is being undertaken. Obtaining borings and related geotechnical data duringthe pre-design should result in fewer constructionchange orders and improved cost estimates.POLICY INITIATIVESB1 USE OF PROFESSIONAL PEERSJ U LY 2 0 0 7 P R O G R E S S R E P O R T11

POLICY INITIATIVES(C)CONSTRUCTION PHASESTRATEGIES12DESIGN CONSTRUCTION EXCELLENCE

C2 DEFINED QUANTITY CONTRACTINGC3 Pre-Qualification ofConstruction ContractorsPartnering facilitates communicationamong stakeholders and reduces contract disputes.Meeting construction schedules and deliveringconstruction projects within budget is contingent ongood communication among the various contractholders and administrators controlling the work.In this effort, all parties involved in a constructionproject agree to adopt a cooperative, team-basedapproach to project delivery, meeting regularly tocoordinate and develop joint strategies for siteoperations (phasing, staging, concurrent construction operations, submissions flow, etc.). The intentionis to be proactive, resolving potential conflictsbefore they impact the progress of the work, effectively reducing litigation and claims.During 2007, the City continued toimplement piloting for a method of contractingwhich builds a non-adversarial owner/contractor relationship by developing a revisedrisk balance between contracting parties.This year, the Department of EnvironmentalProtection’s facilities for Remsen Avenue andPike Streets are using this methodology. TheRemsen project is now out for bid using a DefinedQuantity bid format and will soon offer the firstopportunity to evaluate this process.Defined Quantity Contracting is intendedto create more objectivity in the estimating andbidding process. Construction costs are controlledby accurate measurement of the work required, andthe application of expert knowledge of costs andprices of work, labor, and materials. The DefinedQuantity Contracting method uses the competitivebidding process but, by incorporating ownerdefined quantities, clearly delineates the basis foragreement. It has the added benefit of requiringthe design consultant (architect/engineer) tobe actively involved in the development of the costestimate and consider the specific quantitiesof materials that comprise the project.Widely used internationally, this approachhas demonstrated lower bid prices, and substantiallyincreased efficiency in change managementduring construction.Additional pilot implementations ofthis process are under consideration for launch laterthis year.As part of this initiative in 2007, DDC isundertaking pre-qualification of constructioncontractors for several specialized contracts forcultural institutions and libraries, including theQueens Museum of Art and the Weeksville HeritageCenter. The Procurement Policy Board rules allowthe pre-qualification of contractors for highlyspecialized construction work where it is essentialthat only competent and experienced vendorsbe invited to bid.The process begins with the advertisement,in the City Record and any other relevantpublications, for pre-qualification for contractorsfor the specific project. Interested firms will requestor download the pre-qualification requirementspackage which details the qualification andexperience needed to undertake the work of thecontract. The firms will provide such materialsto the agency at a specific date and time. Anevaluation team will then review the qualificationpackages submitted and select firms that havemet the criteria for pre-qualification.Once final design and bid documentsare available for the specific projects, only thosefirms who have been pre-qualified will beinvited to submit competitive bids at a specificdate and time. After a bid opening, which allpre-qualified firms can attend, the responsiveand responsible firm with the lowest bid willbe awarded the contract.POLICY INITIATIVESC1 PARTNERING The Brooklyn Children’s Museum, designedby Rafael Viñoly Architects, is participating in thepartnering strategy. It is scheduled for completionfall 2007.J U LY 2 0 0 7 P R O G R E S S R E P O R T13

POLICY INITIATIVES(D)EDUCATION ANDEVALUATION STRATEGIESDDC Talks posters14DESIGN CONSTRUCTION EXCELLENCE

As of June 2007, over 700 employees fromvarious City agencies attended courses and lecturesthrough the Design and Construction Excellenceprogram. The purpose of the Continuing Educationcurriculum, which has been developed through theOffice of Management and Budget, DDC, DCAS,and MOCS, is to enhance the capacity of the capitalprogram design and construction personnel sothat they become leaders in design and construction excellence.To maximize current capital investment,the feedback loop of best practices and lessonslearned are emphasized in these courses throughlectures, interactive problem solving and sitetours. Course descriptions have been or will beposted on www.nyc.gov. Courses include: Introduction to Design ConstructionExcellence (D CE 101) Universal Design and Applications Introduction to Sustainable Design and LEED LEED New Construction LEED Commercial Interiors LEED Existing Buildings and LEED Commissioning Architectural and Engineering Design ConsultantsProcurement Constructability Review, Construction Documentsand Bidding Environmental Preferable Purchasing and GreenBuildings Laws Management of Architectural and EngineeringConsultantsD3 DESIGN QUALITY INDICATORPROGRAMboth in the public, private and institutional sectors,in green and universal design, have been visitedby City staff since the inception of the program: OEMHeadquarters, the Bronx Library Center, NYMEXBuilding, Cook Fox offices, Perkins Will, BellevueHospital Ambulatory Care Building, and the CooperHewitt National Design Museum.D2 PROCUREMENT EVALUATIONIn December 2006, new procurementevaluation methods were formally implementedfor 2007. The cornerstone of the ProcurementInitiatives is evaluation and review of “bestpractices.” It includes mandated reporting on theinnovative procurement methods by the City’s ChiefProcurement Officer to the Procurement PolicyBoard. This reporting informed the Board’s decisionson whether to codify the new methods withinthe PPB rules. In September 2005, the final reporton “open Request for Proposal with fee curve”procurement method was submitted, and the finalreport for the “two-stage RFP for Project-SpecificDesign Services” procurement method wassubmitted to the PPB on March 2006.In a completely new development for 2007,the Department of Design and Construction(DDC) is piloting implementation of a tool calledthe Design Quality Indicator (DQI) for all of itsbuilding projects.DQI is a web-based tool that provides theframework for an assessment of a building’sprogramming, design, and ultimately, execution.It is used to assist all project stakeholders, includingpeople from the community, DDC client agencies,and architecture, engineering, and designprofessionals in achieving measurable designexcellence in new or reconstructed buildings.DQI provides a structure for the projectscoping effort, focusing the team and aligning themaround the needs of the client, and engaging allstakeholders throughout the process to achievea truly responsive design. The overall result is awell-designed building that meets the design andconstruction goals of the client and the community.DDC has implemented a pilot study of36 projects and is reviewing the results. Overthe course of the year, DDC will broaden theimplementation to include many other Structuresprojects. Designs in the preliminary pilot studyinclude: Queens Museum of Art, Riverside HealthCenter, Rescue Company 3 FDNY facility, CentralHarlem Health Center, Kings County CriminalCourthouse, Remsen Yard, and 30 others.POLICY INITIATIVESD1 CONTINUING EDUCATIONSite tours add one more dimension oftraining outside the traditional classroom setting andcross-agency field trips strengthen team buildingamong various offices. These exemplary projects,J U LY 2 0 0 7 P R O G R E S S R E P O R T15

16ConstructionPlanningProcurementTwo-Stage RFP for Project-SpecificDesign ServicesUse of Professional PeersDESIGN CONSTRUCTION EXCELLENCE121ST PrecinctCentral Harlem Health CenterDHS Family CenterElmhurst Branch LibraryEngine Company 259Ferry Point Park Comfort StationOn-Call Design Services for Small Firmsand Generic Requirement ContractsxxxxxxHarris Park BallfieldsIndian Lake Restoration, Crotona ParkMontessori Progressive Learning CenterMullaly Park PlaygroundxxxxxxxxxBudget ProcessDefined Quantity ContractingxPre-Qualification of ConstructionContractorsxxQueens Hospital EMS StationQueens Museum of ArtRescue Company 3Riverside Health CenterStapleton Branch LibraryStaten Island Children’s MuseumxxxxxxxxxxxxxxW. 59TH Street Recreation CenterQueens Central LibraryPoe Park Visitors’ CenterPike Street YardPedestrian BridgesGlen Oaks Branch LibraryFlight 587 MemorialPOLICY INITIATIVESAPPLICATIONOF DESIGN CONSTRUCTIONEXCELLENCEINITIATIVESFEATURED PROJECTSxx

Brooklyn Historical SocietyChelsea Health CenterConference

Department of Design and Construction, the Design Construction Excellence (D CE) initiative has seen its most successful year yet. Since our last report, the initiative has continued to elevate design and construction standards and helped to produce thoughtful, creative projects in every borough. The new Office of Emergency

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