Historic City Hall project yields surprises

Jennifer Swan: When a building is brought down to bare bones, that's the right time for abatement.

David Atkisson: Historic City Hall used materials and methods no longer employed.

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In February 2023, the city of Springfield issued a request for qualifications for a construction manager at risk to oversee renovations of Historic City Hall, the landmark building containing Springfield City Council chambers and other offices.

The construction budget was roughly $10 million, according to past Springfield Business Journal reporting.

The costs crept up over time. In February 2024, the total looked like it would be $16.5 million, city officials told SBJ.

Today, the estimated cost of the renovations stands at $23.2 million, according to the city-maintained project website, which notes construction began in February 2025 and is slated for completion in June.

How did the project cost more than double in a year’s time? City Architect Jennifer Swan said the team found some surprises, including a need for much more lead and asbestos abatement than anticipated.

“When the building is brought down to the bare bones, that’s the time to do it, because it’s never going to get any cheaper – but it still is pricey,” she said.

Surprises also included roof drains hidden in the walls.

“Originally, we thought we had them scoped, and we thought the pipes were fine and we were just going to line them,” she said.

It turned out that the cast-iron pipes were fine, but leaks were occurring in connectors.

“We decided that it was just cheaper and better to go ahead and replace the whole thing because you can’t just get in there and take out the connectors; you have to remove the whole pipe,” she said.

For the team to replace the pipes, the plaster walls had to be opened, Swan said.

“That’s when we found they were wrapped in asbestos,” she said.

Once asbestos is discovered, work stops until it is abated, according to Swan.

David Atkisson, Springfield office leader with J.E. Dunn Construction Co., said Swan’s account was a good illustration of how such discoveries can compound difficulties with a project.

Atkisson said the team looked at the project in three different layers, starting with their own observation to identify what they were able to see.

Gerken Environmental Enterprises Inc. was brought in for initial abatement and selective demolition, Atkisson said, and the process involved the removal of some ceilings and walls.

“We could see more of the existing conditions that were going to remain,” he said. “Before, we could only see what we could see; now, once Gerken is done, we can see a whole lot more, and so there was another wave of what are we going to do with these questions?”

After that work was done, J.E. Dunn’s heavy structural demolition began – things like cutting openings into floors for a new elevator shaft and stair shaft.

“It’s another layer of cutting into the building, and hence more discoveries,” Atkisson said.

It was only when the steel, concrete or wood structures of the building were exposed that workers could see what they were contending with.

Swan said the city was limited in construction documents from the building, which dates from 1894.

“Really, it was based on what you could see,” she said.

Over the decades, renovations like dropped ceilings and room partitions were added to make the building meet the needs of different generations of users. In some instances, a ceiling was removed only to reveal another ceiling behind it.

“In that particular case, you’re doing two jobs when you thought there was only one,” Swan said.

The construction manager at risk method of delivery was chosen for the project. It’s a model that is intended to keep projects on time and on budget.

With project cost estimates more than doubling in a year’s time, Atkisson was asked if the model conveys any advantages.

“It’s a great question, and it’s a valid question,” he said.

A CMAR provides a guaranteed maximum price for what is known from documents or otherwise identified at the time the contract was signed.

“We are still contractually obligated to deliver all of the requirements that were identified up front,” he said. “Obviously, what we’re not contractually required to do is to just address anything and everything that’s discovered along the way. You can’t contract for what you don’t know.”

The city had identified a contingency, and that was utilized, with additional funding needed beyond that, Atkisson said.

Asked if the price is likely to remain steady from here, Swan replied, “I wish I had a crystal ball. I hope so.”

She added that all decisions the team makes check off project goals, like accessibility to all, modern office spaces and new heating, ventilation, air conditioning, plumbing and electrical systems.

“We really try to only make changes or improvements that support those goals,” she said. “I think that’s important.”

Atkisson said the building is worth preserving.

“From my vantage point, this is a really special building,” he said. “It’s 130 years old; it is a stone building that is built with materials and construction methods that are not commonly used anymore. It would cost – I can’t even state how much it would cost to build this building the way it’s built today, because you just don’t build buildings like this today.”

The building is on the historic register, he said, and it has unique, high-quality features.

“It was a neat building before we started this project, but it is going to be really special when it’s done, and it’s the kind of building that’s worth investing in,” he said.

Swan said she believes the building will be move-in ready in February or March of 2027.