UNDER SEPARATE COVER CITY OF BAYSWATER - Ordinary Council Meeting 29 June 2021
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CITY OF BAYSWATER
UNDER SEPARATE
COVER
Ordinary Council Meeting
29 June 2021
Item 10.4.6 RFT 11 2021 Bayswater Waves Refurbishment Tender EvaluationOrdinary Council Meeting Agenda 29 June 2021
10.4.6 RFT 11 2021 Bayswater Waves Refurbishment Tender Evaluation
Owner: City of Bayswater
Responsible Branch: Recreation
Responsible Directorate: Community and Development
Authority/Discretion: Executive/Strategic
Voting Requirement: Simple Majority Required
Attachments: 1. CONFIDENTIAL - Tender Evaluation spreadsheet
Consolidated Results REPORT VERSION [10.4.6.1 - 7
pages]
Refer: Item 10.4.4: OCM 25.5.2021
Item 10.4.4: OCM 27.1.2021
Item 10.4.6: OCM 25.2.2020
Item 11.2.5: OM 17.11.2015
Confidential Attachment(s) in accordance with Section 5.23(2) of the Local Government
Act 1995 (WA):
(e) a matter that if disclosed, would reveal -
(i) a trade secret; or
(ii) information that has a commercial value to a person; or
information about the business, professional, commercial or financial affairs
(iii)
of a person,
SUMMARY
For Council to consider the awarding of Tender No. 11-2021 for the Refurbishment of Bayswater
Waves Aquatic Centre (Stage 1).
Stage 1 works are scheduled to commence in July 2021 and be completed by December 2021.
Submissions in response to the request for Tender 11-2021 were received from three contractors
and have been assessed in this report.
OFFICER'S RECOMMENDATION
That Council awards Tender 11-2021 Refurbishment of Bayswater Waves Aquatic Centre
(Stage 1) to Paragon Construction Solutions in accordance with their Tender submission
dated 18 June 2021 including all separable portions, at a total cost of $2,422,742.43
(excluding GST).
BACKGROUND
Bayswater Waves, in its current configuration, was constructed in 1998 and is over 22 years old.
The facility consists of seven separate pools including WA's only wave pool. The centre also has
a number of non-aquatic facilities including a multi-storey health club, group fitness facilities, café
and other function rooms.
Plant and equipment required to operate a facility of this size incurs significant expense through
maintenance, upkeep and capital replacement. Funds were allocated in the 2014/15 budget to
commission an Engineering Report for the pools and associated plant to assess future life cycle
and maintenance requirements for Bayswater Waves.
The engineering firm GHD was commissioned to assess the condition and possible future capital
expenditure for the:
Building services;
Page 1Ordinary Council Meeting Agenda 29 June 2021
Building fabric and pool structure; and.
Water treatment.
The GHD report detailed that the building fabric and pool structure were in fair to good condition
for their age; however, various building elements were identified as requiring significant
repair/replacement for the building to reach its intended service life. Based on the conditions
observed on site GHD recommended the City plan for major refurbishments of the site within the
next five years.
At the Ordinary Council Meeting (OCM) held 17 November 2015, Council considered the above
matter and resolved as follows:
"That Council:
1. APPROVED staged asset renewal program for the Bayswater Waves over a 10-year
period.
2. NOTES that officers will develop a schedule of works, asset management program and
associated budgets for inclusion in the City's Long Term Financial Plan."
The first stage of the works identified in 2015 was split into two sub-stages with the initial stage
focusing on the outdoor 50m Olympic pool and the next stage on the hydrotherapy area including
the hydrotherapy pool, spa, sauna and steam room. The initial stage commenced in May 2017
and was completed in January 2018. The next stage commenced in June 2018 and was
completed in December 2018.
An allocation of $650,000 was included in the 2019/20 budget for ‘Bayswater Waves
refurbishment tender design’. Tender 15-2019 for engineering consultancy for remaining
refurbishments at Bayswater Waves was developed requesting submissions on the following
deliverables:
(a) Produce a detailed scope of works supported by detailed quantity surveying of all aspects
of the project, and comprehensive testing and analysis of necessary technical works for the
recommended refurbishment.
(b) Provide recommendations regarding stages, scheduling and prioritisation of program of
works.
(c) Investigate and report on the feasibility of sustainability opportunities including, but not
limited to, geothermal water heating for consideration.
(d) Design and develop project tender documentation complete with design schematics,
project specifications and a detailed program of works.
Council considered the submissions for Tender 15-2019 at the OCM held 25 February 2020, and
resolved as follows:
“That Council awards Tender 15-2019 for the Engineering Consultancy for Remaining
Refurbishments at Bayswater Waves to Glen Flood Group Consultancy in accordance with their
tender submission dated 20 December 2019.”
Glen Flood Group Consultancy (GFG) was awarded the consultancy tender with an estimated
price of $343,777. The scope of the submission was based on like for like refurbishment as
detailed in the GHD Engineering Report of 2015.
GFG presented to Councilors on 1 December 2020 recommending condensing the remaining
four stages into two larger stages to take advantage of current borrowing conditions whilst
maintaining a level of service provision and minimising the impact to customers. They further
Page 2Ordinary Council Meeting Agenda 29 June 2021
recommended a number of compliance and aesthetic upgrades that were not included in the
GHD report.
At the OCM held 27 January 2021, Council adopted the officer's recommendation and resolved
as follows:
"That Council:
1. Notes the Bayswater Waves Facility Condition Assessment and Refurbishment Concept
prepared by Glen Flood Group.
2. Notes that the remaining Bayswater Waves Refurbishment project funding of $8,600,000 is
currently proposed over seven financial years in the existing Long Term Financial Plan,
with $1,569,500 approved in the 2020/21 budget with funds from the Economic Stimulus
Reserve.
3. Endorses the proposed Bayswater Waves refurbishment concept as outlined in Attachment
1 to this report.
4. Endorses the proposed staging of the refurbishment of Bayswater Waves as outlined in
Attachment 3 to this report.
5. Notes that a portion of the $1,569,500 contained in the 2020/21 budget for the part
refurbishment of Bayswater Waves will be carried forward to the 2021/22 financial year.
6. Considers the additional funding of $1,284,715 required to complete the proposed Stage 1
of the Bayswater Waves refurbishment works as part of the 2021/22 budget process.
7. Considers an amount of $7,345,524 required to complete proposed Stage 2 of the
Bayswater Waves refurbishment works as part of the major review of the Long-Term
Financial Plan.
8. Requests the Chief Executive Officer to identify funding options through a combination of
borrowings and applications for grants to facilitate the unfunded portion of proposed Stages
1 and 2 of the Bayswater Waves refurbishment works.
9. Notes that any borrowings relating to the Bayswater Waves refurbishment works will be
included in the draft 2021/22 budget and subsequent budgets as required.”
In line with the Council resolution at the OCM of 27 January 2021, GFG split the detailed design
into two substantive stages, commencing Stage 1 immediately. Detailed design of Stage 1 has
now been completed and the detailed design for Stage 2 is on track to be completed by
September 2021.
Stage 1 of the detailed design includes:
The 25m pool area;
Chlorine gas compound;
Sustainability initiatives; and
Accessibility improvements.
Stage 1 construction work is proposed to commence from beginning of July 2021 and be
completed by December 2021. A Tender to carry out Stage 1 refurbishment works was
advertised in the West Australian newspaper and circulated via Tenderlink from Wednesday 26
May 2021 with a closing date of Friday 18 June 2021.
EXTERNAL CONSULTATION
The City consulted with GFG Consulting and a team of specialist engineers, architects and
industry experts in developing the detailed design and Tender specifications.
Page 3Ordinary Council Meeting Agenda 29 June 2021
The Western Australian Department of Health (WADOH), was also consulted with prior to and
throughout the assessment of an application seeking formal approval to modify the Bayswater
Waves Aquatic facility in accordance with the detailed design and specifications. On 2 June
2021, the City was notified that the application To Construct, Alter or Extend an Aquatic
Facility/Water Body submitted to the WADOH on 30 April 2021 has been approved.
OFFICER'S COMMENTS
Three budget allocations totalling $2,213,877 were approved in the 2020/21 budget in relation to
works that will now form part of Stage 1 of the Bayswater Waves refurbishment. This comprises
as follows:
Bayswater Waves - Refurbish 25m pool, pool hall and plant room - $1,500,500 – Reserve
funds.
Bayswater Waves - Changeroom refurbishment - $213,377- Reserve funds.
Bayswater Waves - Access and inclusion improvements - $500,000 Local Roads and
Community Infrastructure Program (LRCIP) Grant funds.
All three budget allocations are proposed to be carried forward to the 2021/22 budget to
commence Stage 1 of the refurbishment of Bayswater Waves Aquatic Centre in July 2021.
This is considered to be a large-scale and complex aquatic refurbishment project. In order to
minimise risk and ensure the best outcome for the City, a GFG Consulting associate has been
appointed as the Project Manager.
Submissions were received from the following three organisations:
Paragon Construction Solutions.
Safeway Building Renovations.
TARDAN t/a Western Projects.
All submissions have been evaluated based on the below criteria, and an evaluation report is
provided as Confidential Attachment 1.
Qualitative Criteria
The qualitative criteria for this Tender are as follows:
ITEM WEIGHTING
Demonstrated Experience including Aquatic Projects 20%
Tender Resources and Capacity 10%
Methodology 15%
Local Economic Benefits 5%
TOTAL 50%
Quantitative Criteria
Tenderers were requested to submit a Total Lump Sum Price for each separable portion of the
works as detailed in the table below:
LUMP SUM PRICE DESCRIPTION TOTAL
WEIGHTING
Page 4Ordinary Council Meeting Agenda 29 June 2021
Stage 1, excluding all separable portions.
Separable Portion 1 - Supply of mobile disabled pool hoist/lifting device.
Separable Portion 2 - Waterslide reconfiguration to accommodate disabled
access path.
Separable Portion 3 - Disabled access path from the 25m pool around lazy
50%
river adjacent to the water slide.
Separable Portion 4 - Remodel two existing WCs into a new adult changing
places room (hydrotherapy area).
Separable Portion 5 - New external access from main car park to gym area.
Stage 1, including all separable portions.
Total Lump Sum prices were requested for each separable portion to accommodate the
reduction to scope should the funding not have been approved. Submissions were evaluated on
the Total Lump Sum price including separable portions.
All submissions received were complete and conforming. It is considered that all submissions
also addressed the qualitative criteria and demonstrated the ability to provide the City with the
desired outcome.
Assessment
A panel consisting of the Acting Manager Recreation, Acting Assistant Manager Recreation and
the Project Manager was formed to assess the Tenders in accordance with the qualitative
criteria.
The evaluation scores against the qualitative criteria are listed below:
QUALITATIVE CRITERIA EVALUATION TABLE
TENDERER DEMONSTRATED TENDER METHODOLOGY LOCAL TOTAL
EXPERIENCE RESOURCES (15%) ECONOMIC SCORE
INCLUDING AND CAPACITY BENEFITS (5%) (50%)
SIMILAR AQUATIC (10%)
PROJECTS (20%)
Score % Score % Score % Score % Total %
Paragon
Construction 4.33 17.33 3.83 7.67 3.67 11.00 2.67 2.67 38.67
Solutions
Safeway
Building 4.00 16.00 4.33 8.67 3.00 9.00 3.33 3.33 37.00
Renovations
TARDAN
t/as Western 3.00 12.00 3.00 6.00 3.33 10.00 3.00 3.00 31.00
Projects
The City’s intent is to award this contract to a contractor that offers the best overall outcome
according to the qualitative criteria and price as demonstrated in the below aggregated
evaluation table.
AGGREVATED EVALUATION TABLE
TENDERER TOTAL QUOTED PRICE QUALITATIVE PRICE TOTAL
(50%) (50%) SCORE
(100%)
Paragon Construction $2,422,742.43
Solutions 38.67 50.00 88.67
(excluding GST)
Page 5Ordinary Council Meeting Agenda 29 June 2021
Safeway Building $2,680,854.25
Renovations 37.00 45.19 82.19
(excluding GST)
TARDAN t/as Western $3,078,274.00
31.00 39.35 70.35
Projects (excluding GST)
Following the evaluation panel assessment, final Tender clarifications including reference checks
were completed. The reference checks all confirmed the comments made by Paragon
Construction Solutions.
Having conducted the above assessment process, it is considered that the Tender submission
from Paragon Construction Solutions to be the highest scored/ranked of the submissions
received.
LEGISLATIVE COMPLIANCE
The Tender process has met the requirements of s3.57 the Local Government Act 1995 and r.14
- 16 of the Local Government (Functions and General) Regulations 1996.
All tenderers have indicated that they do not have any conflicts of interest in the performance of
their obligation under the contract.
RISK ASSESSMENT
In accordance with the City’s Risk Management Framework, the officer’s
recommendation/following options have been assessed against the City’s adopted risk tolerance.
Comments are provided against each of the risk categories.
Officer’s That Council awards Tender 11-2021 Refurbishment of Bayswater Waves
Recommendation Aquatic Centre (Stage 1) to Paragon Construction Solutions in
accordance with their Tender submission dated 18 June 2021 including
all separable portions, at a total cost of $2,422,742.43 (excluding GST).
Risk Category Adopted Risk Appetite Risk Assessment
Outcome
Strategic Direction Moderate Low
Reputation Low Low
Governance Low Low
Community and Stakeholder Moderate Low
Financial Management Low Low
Environmental Responsibility Low Low
Service Delivery Low Low
Organisational Health and Safety Low Low
Conclusion The Tender submission from Paragon Construction Solutions has been
evaluated as the highest ranked Tender in accordance with the selection
criteria weightings as detailed in the Tender documentation.
Option 2 That Council awards Tender 11-2021 Refurbishment of Bayswater Waves
Aquatic Centre (Stage 1) to an alternate tenderer in accordance with their
Tender submission.
Risk Category Adopted Risk Appetite Risk Assessment Outcome
Strategic Direction Moderate Low
Reputation Low Low
Governance Low Low
Community and Stakeholder Moderate Low
Financial Management Low Moderate
Environmental Responsibility Low Low
Service Delivery Low Low
Organisational Health and Safety Low Low
Conclusion This option is not aligned to the adopted risk appetite and presents a moderate
Page 6Ordinary Council Meeting Agenda 29 June 2021
financial risk given their tendered price.
Option 3 That Council does not award Tender 11-2021 Refurbishment of Bayswater
Waves Aquatic Centre (Stage 1).
Risk Category Adopted Risk Appetite Risk Assessment Outcome
Strategic Direction Moderate Moderate
Reputation Low Moderate
Governance Low Low
Community and Stakeholder Moderate High
Financial Management Low Moderate
Environmental Responsibility Low Low
Service Delivery Low High
Organisational Health and Safety Low Moderate
Conclusion This option is not aligned to the adopted risk appetite and presents a high risk in
terms of community and stakeholder and service delivery. The facility will be
unable to meet current and future demand and the aging facility presentation
and functionality will be inadequate and are unlikely to meet customer
expectations. This option also presents a moderate reputational, financial and
occupational health and safety risk as the asset will continue to deteriorate
creating significantly increased maintenance and repair costs and negatively
impacting reputation and facility safety for staff and patrons.
FINANCIAL IMPLICATIONS
The following financial implications are applicable:
Item 1: Refurbishment of Bayswater Waves Aquatic Centre - Stage 1
Asset Category: Refurbish Source of Funds: Reserve, Grant and Loan/
Borrowings
LTFP Impacts: The current LTFP has allocated funding for the remaining refurbishment works
spread over the next 6 years. This project will reduce the pressure of future
funding requirements within the LTFP.
Notes: Nil
ITEM CAPITAL / ONGOING COSTS ($) INCOME ASSET WHOLE OF CURRENT
NO. UPFRONT ANNUAL ($) LIFE LIFE BUDGET ($)
COSTS ($) MATERIALS & STAFFING LRCIP grant funding (YEARS) COSTS ($)
CONTRACT
1 $2,422,742.43 N/A N/A (Refer to Current 25+ N/A $1,500,500*
Budget) $213,377**
$500,000***
*80614 -- Bayswater Waves - Refurbish 25m pool, pool hall and plant room – Reserve funds.
**80781 - Bayswater Waves - Change room refurbishment – Reserve funds.
***80817 - Bayswater Waves - Access and inclusion improvements - LRCIP grant funds.
Three separate budget allocations totalling $2,213,877 were approved in the 2020/21 budget,
and all three allocations are proposed to be carried forward to the 2021/22 budget to commence
Stage 1 of the refurbishment of Bayswater Waves Aquatic Centre in July 2021.
In addition to the preferred Tenderer's price, an estimated amount totalling $700,000 is required
for construction contingency (10%), project management, forensic investigations, building
management system analysis, tile audits, quality assurance testing and specialist engineering
services required throughout the construction project.
Relevant capital works (loan) funds currently proposed in the draft 2021/22 budget (other than
those carried forward from 2020/21) will be significantly reduced as detailed in the following table:
Project Title Current Amount Modified Amount Variance
Required
80824 - Bayswater Waves $1,284,715 $700.000 -$584.715
Page 7Ordinary Council Meeting Agenda 29 June 2021
refurbishment
80865 - Bayswater Waves - $120,000 $0 -$120,000
replace pool platform
Total Variance (Reduction) -$704,715
$1,284,715 requested in the draft 2021/22 capital works budget can be reduced with project
costs less than originally forecast. $120,000 requested to replace the 25m pool platform is no
longer required as these works are being completed as part of Stage 1 Refurbishment of
Bayswater Waves Aquatic Centre.
Accordingly, it is considered that the draft 2021/22 budget has sufficient funds (combination of
carried forwards, reserves, grant funds, and new loan/borrowings funds) to meet the preferred
Tenderer’s price and all additional costs outlined above for the subject works. The modified
required amount of $700,000 in the 2021/22 budget is proposed to be via borrowings and a
detailed business case will be referred to Council to consider all funding options.
STRATEGIC IMPLICATIONS
In accordance with the City of Bayswater Strategic Community Plan 2017-2027 (as amended),
the following applies:
Theme: Our Community
Aspiration: An active and engaged community
A strong sense of community through the provision of quality services and
Outcome C1:
facilities.
The refurbishment works and improvements identified in the GFG report are in line with the
above Theme, Aspiration and Outcome.
CONCLUSION
The Tender submission from Paragon Construction Solutions has been evaluated as the highest
ranked Tender in accordance with the selection criteria and weightings as detailed in the Tender
documentation. Accordingly, it is recommended that Council accepts the submission from
Paragon Construction Solutions and awards Tender 11-2021 for the Refurbishment of Bayswater
Waves Aquatic Centre to Paragon Construction Solutions in accordance with their Tender
submission dated 18 June 2021.
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