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RESOLUTION NO. R04- C~o~
A RESOLUTION OF THE CITY OF BOYNTON BEACH,
FLORIDA, AUTHORIZING EXECUTION OF A TASK
ORDER Ne.u04-15-1 FOR METCALF & EDDY, IN
THE AMOUNT OF $53,848 FOR ENGINEERING
SERVICES FOR THE PREPARATION OF THE
UTILITIES DEPARTMENT EMERGENCY RESPONSE
PLAN (ERP) TO COMPLY WITH REQUIREMENTS OF
THE UNITED STATES ENVIRONMENTAL
PROTECTION AGENCY (EPA); AND PROVIDING AN
EFFECTIVE DATE.
WHEREAS, the Emergency Response Plan (ERP) will serve as a primary tool to
utility personnel to respond swiftly and effectively to a variety of crises or
y situations; and
WHEREAS, the City Commission, upon staff's recommendation, has deemed it
and in the best interests of the public, to approve Task Order No. U04-15-1
Metcalf & Eddy in the amount of $53,848, engineering services for the preparation of
Utilities Department Emergency Response Plan )ERP) to comply with requirements
the United States Environmental Protection Agency (EPA);
NOW, THEREFORE, BE IT RESOLVED BY THE CITY COMMISSION
THE CITY OF BOYNTON BEACH, FLORIDA, THAT:
Section 1. The City Commission of the City of Boynton Beach, Florida does
authorize and direct execution of Task Order No. U04-15-1 for Metcalf & Eddy,
in the amount of $53,848.00.
Section 2. This Resolution shall become effective immediately upon passage.
reements\Task - Change Orders\Task Order - Metcalf & Eddy 020604.doc
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PASSED AND ADOPTED this t'7 day of February, 2004.
Clerk
:aXreso~agreements\Change Order - Metcalf & Eddy
CITY OF BOYNTON BEACH, FLORIDA
Vice M~")~/r / ._ ~_~"~/ .~ ..............
:\CA\RESOXAgreements\Task - Change Orders\Task Order - Metcalf & Eddy 020604.doc
TASK ORDER U04-15-01
January 20, 2004
FEE PROPOSAL AND SCOPE OF SERVICES
CITY OF BOYNTON BEACH
EMERGENCY RESPONSE PLAN
A. Background
This scope of services to provide for preparation of a comprehensive emergency response
plan (ERP) for the potable water supply, treatment, and distribution system the City of
Boynton Beach Utilities Department.
The emergency response plan will serve as a primary tool to enable Utility personnel to
respond swiftly and effectively to a variety of crisis or emergency situations. The Utility
will lower its vulnerability or risk associated with malevolent acts by having an up-to-
date plan that defines the roles and responsibilities of the staff involved with the response
and mitigation of emergency situation consequences.
The City's Vulnerability Assessment (VA) identified the primary risks associated with
their water system. The emergency response plan will address the recommendations from
the VA. The objective of the emergency response plan is to develop a program for rapid,
effective response to and recovery from an event, thereby reducing the negative impacts
on water system operations and on the health and safety of the Department's personnel,
customers, and the public at large.
The ERP is intended to meet the EPA requirements under Section 1433(b) of the Safe
Water Drinking Act as amended by the Public Health Security and Bioterrorism
Preparedness and Response Act of 2002 (Public Law 107-188, Title IV - Drinking Water
Security and Safety). The ERP is due to the EPA within six months of the submittal of
the vulnerability assessment. The submittal date for the VA was December 30, 2003.
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B. Scope Of Services
1.0 Project Management
1.1 Management
Project Management activities comprise contract administration,
coordination of project staff, monitoring of progress and project costs
during the project.
1.2 Project Meetings
M&E will attend up to three meetings with representatives of the City as
part of this project, as follows:
a. ERP kickoff meeting,
b. One Emergency Action Plan and ERP progress meeting, and
c. Review meeting with the City to discuss comments on the draft report.
M&E will prepare a brief agenda prior to each meeting. However,
meeting minutes will not be taken.
2.0 Emergency Response Planning
Prior to September 11,2001, emergency response/contingency plans and procedures were
typically aimed at response to service disruption due to natural causes such as flooding or
to physical (accidental) damages, such as power outages or main breaks, with little or no
emphasis on malevolent acts. On June 12, 2002, the Public Health Security and
Bioterrorism Preparedness and Response Act of 2002 was enacted. The Bioterrorism Act
requires security vulnerability assessments and emergency response plans to address
response, recovery, and remediation actions for man-made and/or technological
emergencies. This new emergency response plan will address emergencies caused by a
breach of high priority risks to the water system identified in Utility's Vulnerability
Assessment.
Emergency response planning begins with a review and assessment of existing Utility
documents and programs related to emergency response including the chlorine risk
management plan, other related plans, and HazMat programs. M&E will meet with Utility
staff to discuss and assess existing emergency response strategies and to develop goals
and objectives for the new emergency response plan. Established policies and procedures
contained in existing plans will be used to the maximum extent while incorporating
recommendations for new measures.
A strategy for Utility's periodic assessment and updating of the emergency response plan
will be presented. The feedback obtained during training sessions and field exercises
should be incorporated into the emergency response plan procedures as "lessons learned."
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The emergency response plan should be updated after a major incident or at least
annually. Contact lists may require more frequent updates.
3.0 Agency Notification Plan
The agency notification plan establishes procedures that the Utility Department should
follow to provide formal notice to local, state, and federal government agencies based on
the character of the incident. Agency notification will be performed in parallel with other
notification actions.
The notification plan will provide for swift and accurate communications with agencies
based on the nature and extent of the emergency situation. A protocol for immediate,
secondary, and follow-on notifications will be defined, and forms and checklists to
implement and document actions will be developed. For example, key contacts will be
identified for key local, state, and federal agencies:
· Local: Local law enforcement, Fire, Emergency Medical Services, Public Works, and
Local Emergency Planning Committee
· State: State Environmental Protection Department, State Homeland Security, State
Emergency Management Agency, and State Bureau of Investigation
· Federal: US Environmental Protection Agency, Federal Emergency Management
Agency, and Federal Bureau of Investigation
In the event of a man-made/terrorist attack, the local law enforcement department will
immediately be notified. Since an intentional act to disrupt the operations of a water
utility or to otherwise jeopardize public health is a criminal act, additional notifications
will include the local FBI field office and other entities that may not normally be
contacted in response to a natural disaster or emergency.
The agency notification and coordination effort will identify which additional emergency
response and management agencies (Emergency Medical Services, the community
emergency management organization, and state agencies) that need to be notified.
4.0 Public Notification Plan
The public notification plan will describe actions that the Utility Department should
follow to provide notice to the public and local news media of system impairment or
failure incidents causing water quality or quantity problems. Procedures will be
presented for notifications during and after normal business hours.
Modifying current public notification procedures requires close interaction and
coordination with Utility staff so that responsibilities and procedures are clearly defined.
A protocol for internal notification and authorization before public notifications will be
established. Lists of telephone and facsimile numbers of key Utility personnel and local
news media will be developed.
5.0 Water Quality Monitoring Plan
The water quality monitoring plan will layout sampling and testing guidelines for water
quality monitoring in the event of a threat or actual contamination incident. Monitoring
should continue until successful recovery actions are verified and the system resumes
normal operation.
Sampling requirements (quantity, type of sample container, environmental controls, type
of sample, and locations) will vary depending on the properties of the contaminant and
where it is introduced into the system. When an incident is suspected or confirmed to be
the result of an intentional act to disrupt the water system operations or to jeopardize
public health, law enforcement officials may require additional samples for evidence
preservation.
The monitoring plan will describe distribution system sampling, chain-of-custody, and
support laboratory services.
During the emergency response planning process, locations for potential contamination
incident monitoring will be identified, mapped, and assigned identification numbers.
Access to each site should be field verified. The monitoring plan will describe:
Source Water Sampling
· Distribution System Sampling
· Chain-of Custody
· Support Laboratory Services
Initial response priority will go to review of data from established monitoring points for
variances from benchmark data. This analysis will suggest locations to focus additional
sampling and if needed, the addition of secondary monitoring stations. Water customers
monitoring water quality will be included in the process. During recovery operations, the
sampling data will serve as the basis for isolating portions of the water distribution
system.
6.0 Emergency Operations Plan
The emergency operations plan will describe general and specific procedures that the
Utilities Department can implement to improve its ability to detect failures or malevolent
acts and direct a rapid response for priorities identified in the Utilities Department
Vulnerability Assessment.
The emergency operations plan will delineate who within the Utility is responsible for
incident response and management. The response administration system will identify
specific individual roles and responsibilities for decision-making, logistics, operations,
incident response control, and finance. The structure will be based on the Incident
Command System, or other similar system that is compatible with the systems used by
local emergency organizations, such as the fire and local law enforcement departments.
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Recommendations for preset arrangements for emergency assistance will be included.
Mechanisms for on-call agreements with contractors, equipment suppliers, and others for
emergency assistance will be examined. Likewise, mutual aid agreements with local and
regional agencies will be assessed.
Emergency action plans will be developed to outline procedures to be implemented to
detect and verify failures or malevolent acts and to provide effective response, recovery,
and remediation actions. Tables, checklists, and schematics will be used to show key
event based procedures. Where practical, existing and new emergency policies and
procedures will be included along with the location of key reference documents.
In the event of an incident, the fundamental emergency action steps are to:
· Identify the type and assess the severity of the incident
· Perform emergency measures to protect health and safety
· Implement environmental protection measures
· Perform emergency repairs
· Restore system to operation
· Evaluate emergency response planning
· Revise emergency response plan, as needed
Emergency action plans will be developed for:
· Contamination: East Water Treatment Plant, West Water Treatment Plant, Booster
Stations, Wellfields as a group. One EAP will be developed for Contamination.
· Damage and Destruction: East Water Treatment Plant, West Water Treatment Plant,
Booster Stations, Wellfieldsas a group. One EAP will be developed for Damage and
Destruction.
· Bomb Threat
· Threat Condition
· Suspicious mail handling and reporting
· Hazardous chemical spill/release response (including Material Safety Data Sheets) -
to be included as existing City information
· Hurricane and tornado response - to be included as existing City information
· Fire response - to be included as existing City information
Selected incidents will be assessed for potential impact on water system operations and
public safety to identify the minimum actions for response, recovery, and remediation for
each element of the water system. Some action plan procedures may be applied for a
variety of natural or man-made incidents.
7.0 Preparedness Training Program
The preparedness training program describes actions that the Utilities Department may
take to train its employees, as well as employees of other local departments, contractors,
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and other response agencies, for timely implementation of the ERP. Staff and responder
safety will be addressed.
A training program to cover a range of possible events will be formulated. Outline lesson
plans and other instructional material for training sessions by appropriate Utility
personnel will be prepared. (Although not part of this task, actual training and
emergency exercises conducted on a regular basis are critical to the successful
implementation of the emergency response plan. An optional task is presented at the end
of this proposal.)
8.0 Report Preparation
Thc Emergency Response Plan will be a consolidated document addressing overall
actions for preparation and response to a water system incident. Attention will be
directed to plans for agency notification, public notification, water quality monitoring,
emergency operations and action plans, and preparedness training.
Deliverables for the proposed work are:
· Draft Agency Notification Plan
· Draft Public Notification Plan
· Draft Water Quality Monitoring Plan
· Draft Emergency Operations Plan
· Draft Emergency Action Plans
· Draft Preparedness Training Plan
· Draft Emergency Response Plan
· Final Emergency Response Plan
The individual section plans will be submitted in draft form only via secured e-mail. The
Utilities Department is requested to communicate any comments or desired revisions
promptly and consensus must be reached on a variety of interaction issues in the planning
process. Comments and intended revisions to the section drafts will be documented and
will be discussed at progress meetings.
The final report will be provided in draft form for review and comment by the Utilities
Department. Since the document may contain sensitive information concerning the water
system's vulnerabilities and emergency response plans, M&E recommends that the report
be closely protected and access to its contents be restricted to incident responders.
Included in this task is M&E QA/QC of the document.
Project Team
The project team will be led by Mr. Alejandro Toro, P.E. who will act as principal-in-
charge. M&E's project manager will be Mr. Jim Penkosky, P.E. M&E's National Leader
for emergency response planning, Mr. Bob Corbitt, P.E., will assist the project team.
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C. Assumptions
1. The City will provide assistance as described herein.
D. Contract Reference
This Task Order shall be performed under the terms and conditions described within the
Consultant Agreement, Two-Year General Consulting and Engineering Contract dated
November 18, 2003 between the City of Boynton Beach and Metcalf & Eddy.
E. Obligations of the City
The City shall provide M&E in a timely manner, record data and information related
to the project as necessary for the performance of the services specified herein.
The City shall review all documents presented by M&E; obtain advice of an attorney,
insurance counselor, and other as City deems appropriate for such review and render
decisions pertaining thereto within reasonable time so as not to delay the services of
M&E.
F. Compensation
M&E proposes to perform all tasks outlined above for a lump sum amount of $53,848. A
cost estimate presenting a breakdown of fees and hours per task is included as
Attachment 1. The fees are summarized below:
Labor Labor
Task Designation Hours Cost Expenses Total Cost
1.1 Management 50 $6,452 $220 $6,672
1.2 Project Meetings 56 $7,664 $1,100 $8,764
2.0 Emergency Response Planning 71 $6,725 $55 $6,780
3.0 Agency Notification Plan 45 $4,365 $55 $4,420
4.0 Public Notification Plan 45 $4,365 $55 $4,420
5.0 Water Quality Monitoring Plan 31 $3,029 $55 $3,084
6.0 Emergency Operations Plan 121 $12,249 $55 $12,304
7.0 Preparedness Training Program 21 $2,005 $55 $2,060
8.0 Report Preparation 50 $5,124 $220 $5,344
Totals 532 $51,978 $1,870 $53,848
As Mr. Bob Corbitt is not on M&E's rate table, we ask by approval of this fee proposal
that he be added at a Senior Project Manager rate of $156/hr.
G. Pro,iect Schedule
A detailed schedule is presented below.
Responsible Party
Projected Projected
Project Activity Start Finish
Date Date
M&E Boynton
Team Beach
Develop ERP and Emergency Action
Plans
NTP Lead 1/21/04 1/21/04
Develop schedule and activity plan Lead 1/22/04 2/05/04
Kickoff meeting(with optional Tabletop Lead Support 2/05/04 2/05/04
exercise)
Review information previously received from
Lead 2/06/04 2/27/04
Boynton Beach Utilities Department Staff
Identify information needed from Boynton Lead 3/01/04 3/15/04
Beach
Send electronic and hard copy of existing ERP
documents to M&E Team Lead 3/16/04 3/30/04
Progress meeting with Utilities Staff
· Review of ERP and Incident Response
Team discussion
· Finalize list of EAPs Lead Support 4/15/04 4/15/04
· Review City's lessons learned (information
learned during a drill or actual emergency)
Interviews with selected Boynton Beach Staff
and key external parties Lead Support 4/16/04 4/30/04
Formulate draft ERP and Emergency Action Lead 3/16/04 5/10/04
Plans
Review Draft revised ERP and provide
comments to M&E Team Lead 5/11/04 5/25/04
Final draft meeting Support Lead 5/25/04 5/25/04
Incorporate review comments, revise, and
resubmit ERP Lead 5/26/04 6/13/04
Approve fmal ERP and issue certification Lead 6/14/04 6/28/04
Receipt of certification by EPA Lead 6/29/04 6/29/04
Participation by Utility Staff
The development of the ERP, as well as the training and exercise tasks, requires a level of
effort by Utilities Department management and staff. The M&E team will be in frequent
communications with Utility staff to tailor the ERP to the facilities and to agree upon
credible emergency scenarios for which EAPs will be developed. M&E team staff will
need access to Utility facilities and documents and this will require assistance by Utility
staff. M&E will need information from Utility staff that will feed directly into the ERP or
EAPs, such as the Utility's organization charts, a description of functional roles and
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responsibilities (if available), and staff members' names and telephone numbers that may
be needed for the contact lists. We will also need a list of all existing standard
operational procedures and, in some cases, copies of the procedures.
The applicable regulations may require that the ERP include "a map of the distribution
system, detailed locations for each valve in the system, including references that will aid
in location of valves, and a map of the well field and surface water intakes as applicable".
M&E has not included this activity in this Statement of Work. M&E will include a
placeholder in the ERP for these maps, but the maps would be provided by the Utility to
meet this requirement.
The Utility staff will be responsible for reviewing the Draft ERP and EAPs and providing
comments to M&E pursuant to the schedule. Additionally, the Utility staff will have to
review and approve the final documents.
The M&E team staff will meet with the appropriate Utility staffto design the training and
emergency exercise, if the Utility elects to have these tasks performed. In addition, the
Utility staff who receive training or who are directly involved in the emergency exercise
will have to devote several hours to those activities. The training sessions and the
emergency exercise both require the use of Utility facilities.
While onsite for short periods of time, the M&E team staff anticipates the use of limited
workspace at the Utility's facilities, to facilitate communication with Utility staff.
H. Optional Tasks
Should the City of Boynton Beach choose, the following tasks can be added to the scope
of work. These tasks are designed to enhance emergency response planning.
Optional Task 9.0 Table Top Exercise
M&E and will provide experts in the fields of emergency response and water systems to
design, facilitate, and critique the tabletop emergency exercise. Elements of the recently
completed vulnerability assessment will be considered in exercise development. One
person on our team will serve as the facilitator for the exercise. The facilitator will
introduce the participants, cover the rules of engagement, describe the scenarios, and
oversee the exercise. Three other team members, along with the facilitator, will evaluate
the various participants' responses to the exercise scenarios. This exercise is conducted
prior to the ERP preparation.
The facilitator will introduce information about the event to the participants and, based
only on that information, the participants will carry out (or simulate) actions to respond.
As the participants reach a point of conclusion to an element of a scenario, the facilitator
may introduce additional information to which the participants must respond. The team
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members will be available to clarify scenario information, but will not offer guidance to
the participants during the conduct of the exercise.
Our team's evaluation will be based on how well the participants comply with their
existing emergency response plan and procedures. In the event the current plan or
procedures do not address a particular scenario event, our team will use various relevant
or applicable guides and requirements for emergency response as published by FEMA,
EPA, AWWA, and the State of Florida to evaluate the participants' responses.
Immediately after the exercise is terminated, the evaluation team will caucus in a separate
room to critique the exercise. At the same time, the participants will critique their own
performance. The two groups will then convene for a joint debrief and will discuss the
participants' performance and will develop a list of recommendations for improvement.
Optional - As the final step, our team will issue a final, client confidential evaluation
report for the exercise, with recommendations for improvement, as appropriate.
Several specific factors in designing the scenarios will be considered, including:
Realistic Scenarios -Both of the scenarios mentioned above are credible events,
based on the level of security presently employed by the City of Boynton Beach
Utilities Department and on the fact that either scenario could be carried out by
individuals with minimal training and minimal knowledge of the Department's
facilities.
Participant Involvement -- The scenarios should be sufficiently broad to involve
participation from all the attendees, in some way. For instance, a contamination
event, by itself, would not typically involve the local fire department. Likewise, a
physical intrusion event, by itself, would not typically involve the health
department or laboratory. The combination of these events gives all exercise
participants an opportunity to be engaged in the response. This will be beneficial,
as feedback from each group will be available at the conclusion of the exercise.
Complexity of Scenarios - The proposed scenarios offer a level of complexity
that requires significant coordination with external parties and first responders.
Features include:
o Explosion and fire,
o Injury to employee,
o Off-site release of chlorine gas,
o Physical intrusion to gated facilities, and,
o Potential contamination of treated water in distribution system.
Combined, these features require a response that involves law enforcement, fire
departments, emergency medical services, health care facilities, environmental
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department, health department, news media, emergency management departments,
laboratories, and consumers.
At the same time, the scenarios do not include more aggressive elements such as
employee deaths, firearms, or customers who are critically ill or dead as the result
of the incidents.
Current Status of Emergency Response Program - The City of Boynton Beach
Utilities Department has acknowledged that its current emergency response
program may not be sufficient to meet the potential threats and vulnerabilities that
are present in today's environment. The Water Department understands the need
to upgrade its program and this exercise will provide useful information for that
purpose.
There is little to be gained by designing and conducting an exercise that is so
complex that the participants become overwhelmed and frustrated. This exercise
should serve as a learning tool. Once the City's Utilities Department's emergency
response program is upgraded and staff is trained to the new program, a more
complex and aggressive exercise is "fair game".
M&E will provide the following services and documents as part of this project:
Final exercise scenario development, for review and concurrence by the City's
Utilities Department
Facilitation of the exercise, including introduction, kick-off, critique, and
closeout summary. A team will be present to evaluate the responses of the
participants.
Written report of the Exercise, to include the observations and
recommendations of both the participants and the evaluators. This report will
also include the exercise rules of engagement, scenario descriptions, and
names and contact information for each participant and evaluator.
The lump sum fee for this optional task will be provided should the City desire this task.
Optional Task 10.0 Provide Training Sessions to Utility Staff
The M&E team will provide training for the Utility's employees who will be responsible
for management and implementation of the ERP. This training will be priced as a
separate item from development of the ERP if requested. The specific subtasks for the
ERP training sessions include the following:
Develop Staff Training Package and Materials. The M&E team will develop the training
package that will be used to train Utility staff on the new ERP. The training will provide
an overview of emergency management and will specifically cover the Utility staff's
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responsibilities under the new ERP. The training will include a PowerPoint®
presentation and handouts.
Present Two Training Sessions to Utility Staff. The M&E team will conduct the training
session for Utility staff at two separate sessions - one in the morning and one in the
afternoon. This will allow regular shift and back shift personnel to attend one of the
sessions. The training will focus on the Utility staff's responsibilities under the revised
ERP and will include orientation on the Incident Command System and the Emergency
Operations Center. Each session is anticipated to take two hours and will be held at a
Utility facility.
The lump sum fee for this optional task will be provided should the City desire this task.
Optional Task 11.0 Conduct Emergency Response Exercise for Utility Staff
The M&E team will conduct a tabletop emergency response exercise for the Utility's
employees who will be responsible for management and implementation of the ERP.
Scheduling of this exercise is planned for a time after the ERP has been approved and
issued to Utility staff and the staff have attended the training sessions as described in
optional task 2 above. This emergency exercise will be priced as a separate item from
development of the ERP if requested. The specific subtasks for the emergency exercise
consist of those in optional task 1 with the exception that during tabletop emergency
exercise scenario development key Utility staff would have limited involvement in the
actual exercise as they would be too knowledgeable about the exercise content. We will
develop an appropriate emergency scenario with a detailed script of events and a
compressed timeline to simulate continuation of the event over a period of one or two
days.
Facilitate Tabletop Emergency Exercise Scenario. As before, the M&E team will
introduce and facilitate the emergency exercise. We will play different roles, as
appropriate for the exercise scenario, primarily acting as external parties (terrorists, news
media, etc.). We will evaluate the response actions of the Utility staff during the exercise,
with the new ERP/EAPs serving as the evaluation criteria. At the conclusion of the
exercise, Utility staff and the M&E team staff will hold short, separate debriefing
sessions. Then the Utility staff and M&E team staff will hold a joint debriefing session to
discuss what went well and what areas are in need of improvement. The entire exercise,
from initiation to closeout, will require four to five hours.
Prepare Exercise Critique Report and Submit to Utilities Department. The M&E team
will provide the Utility with a written critique report of the exercise. This report will
consist of a complete package of the scenario description, the scripts used, the
observations of the Utility staff, and the observations of the M&E team staff. The report
will also include recommendations for improvement.
The lump sum fee for this optional task will be provided should the City desire this task.
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APPROVED BY
CITY OF BOYNTON BEACH, FLORIDA
Date: oQ --4 O- O14
Approved as to Form:
City Attorney
SUBMITTED BY
M etcalf &/~/, Inc.
By:
..~Ale~dro :I'oryVi'~e President
Date:
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ATTACHMENT 1
COST ESTIMATE