ADMINISTRATIVE REPORT

TO:

Standing Committee on Transportation and Traffic

FROM:

General Manager of Engineering Services and Directors of City Plans and Current Planning

SUBJECT:

Richmond/Airport-Vancouver Rapid Transit Project - Process and Staffing

 

RECOMMENDATION

A. THAT the City work with RAV Project Management Ltd. (RAVCO) and proponents on the planning for, and design of the Richmond/Airport - Vancouver rapid transit system including providing input into and participating in future public consultation processes.

B. THAT Council accept $150 000 from RAVCO to offset City costs and approve funding of $220 000 in advance of the 2004 Operating Budget for the Procurement Phase of the RAV Project as described in detail in the report.

C. THAT Council approve the following one year temporary positions (Civil Engineer III, Planner II and Clerk Typist ), subject to Human Resources Classification.

D. THAT staff report back in late 2004 with a recommended work program and budget should the Project proceed to the detailed design and construction phase.

CITY MANAGER'S COMMENTS

COUNCIL POLICY

In the early 1980's City staff worked with the Provincial Government on the design and construction of the Expo Line between Downtown Vancouver and New Westminster. More recently, the City collaborated with the Province on planning for the ALRT (Millennium Line) route, alignment, station locations and station area planning.

In May 2003 Council adopted a series of recommendations regarding the RAV line. In particular:
· the City supports the RAV line as a key element in helping the City achieve its environmental, transportation and liveability objectives as part of comprehensive City and Regional transportation plans.
· the RAV project should meet the highest standards in station and system design through, for example, Crime Prevention Through Environmental Design (CPTED), neighbourhood fit and public art. Further, that stations be designed for maximum integration into the City's transit, pedestrian and cycling networks as well as complement and enhance the communities they will serve.

PURPOSE AND SUMMARY

The RAV Project Management Ltd. (RAVCO) has issued a Request For Proposals to initiate the procurement phase of the Richmond/Airport - Vancouver rapid transit project (RAV). This will lead to a decision to construct the project in 2005. This report provides Council with the following:

· A discussion on the Procurement Phase through to the end of 2005 including the public process planned by RAV this Fall
· a recommended level of staffing so the City can participate in the public process and provide input into the various stages of the Procurement process.

BACKGROUND

The RAV line will be the third rapid transit line to be built in the City. Previously, the Expo Line to New Westminster and Surrey was constructed in the 1980's and more recently, Phase 1 of the Millennium Line along the Broadway/Lougheed corridor was completed in 2002. A decision has yet to be made on completing the Millennium Line to Central Broadway.

Both the Expo and Millennium Lines were significant interventions into the fabric of the City. The City worked with the Provincial agencies, their designers and contractors to assure that the interests of the City and its public were considered. For example, a team of 12 staff from the Planning and Engineering Departments worked with the Rapid Transit Project Office on the design and construction of the Millennium line. This team was able to bring an expertise to the Millennium Line Project that resulted in an integration of the Line with the adjoining neighbourhoods unlike anywhere else in the Region. For example, it resulted in a significant lifestyle improvement to many of the residents of Grandview Highway North between Slocan and Victoria Drive who used to live beside a major truck route and now live beside a very quiet, landscaped greenway.

The City's experience working with the public also resulted in part, in the development of public processes that were successful in engaging the public. Comments from the public on the willingness and openess of city and rapid transit staff to discuss matters and carry through on promises were very positive.

City staff are recommending that the City continue to work with RAVCO in a similar, cooperative manner as staff did on both the Expo and Millennium lines to assure that the design is of a high quality and the integration into the Cambie heritage boulevard and surrounding neighbourhoods is done sensitively and with the least possible impact.

This report focuses specifically on the staffing required for the City to participate in the process leading to a choice of a private sector partner.

DISCUSSION

On August 26, 2003 the RAV office released the Request For Proposals (RFP) to the four short-listed proponents to prepare proposals to design, build, operate and maintain a rapid transit system between downtown Vancouver, central Richmond and the Airport. A copy of the RFP and other relevant information provided by the RAV office is on file with the City Clerk and available on the RAV web site (www.ravprapidtransit.com).

Three major elements of the RAV Project are presently underway (See attached schedule in Appendix A):

1. Procurement Phase (RFP and Best And Final Offers)

The Procurement Phase will lead to a decision late next year on a private sector partner (the Concessionaire) who will design, build, operate and maintain the rapid transit line.

The first step is for the four proponents to prepare by the end of January 2004, their proposals consistent with the RFP document. An evaluation of the proposals will follow, to the end of April 2004. Two proponents will then be chosen to take the second step of the Procurement Phase, the preparation of their "Best and Final Offers" (BAFO's). They have until the end of August 2004 to complete this work. The BAFO stage will involve a significant progression in the detailed preparation of the proponent's proposals. Following another review period, a preferred proponent will be chosen by the end of November 2004. Following negotiations and finalization of a concession agreement, a notice to proceed to design and construction will be issued by early 2005.

Appendix B is an extract from the RFP which provides insight into the level of detail the proponents are expected to provide at this stage.

This process, including the review of the proposals will be confidential to keep the process competitive to assure the best value and product is achieved. The choice of technology and specific alignment and station details will be made public once the concession agreement has been signed. City staff will be involved in the review of the four RFP and two BAFO proposals and will assist in the development of follow up instructions to the two BAFO proponents on the additional information that will be required in their Best and Final Offers.

2. Environmental Assessment Review

The RAV Project is subject to both provincial (BC Environmental Assessment Act) and federal environmental (Canadian Environmental Assessment Act) reviews. A series of studies are underway that will form a portion of the application to the Provincial Government for a permit to allow the Projcect to proceed once all the environmental issues are understood and addressed in the design. The reports include:

· Fisheries and Aquatic Biophysical
· Contaminated site assessment
· Socio-economic/socio-community assessment
· Terrestrial Biophysical study
· Air quality assessment
· Noise assessment
· Archaeological assessment
· Electro Magnetic Field assessment
· Accidents and Malfunctions, Effects of the Environment, and Cumulative Effects.

City staff are reviewing and commenting on these Environmental Reports. Four drafts have been received so far and comments have been provided. The remaining reports will be reviewed as they are received. The Greater Vancouver Health Board, City of Richmond, the Airport, TransLink, the GVRD and federal and provincial government are also involved in the review.

The Environmental Review process includes an independent public consultation component which is scheduled for next year. Staff will attend these hearings and monitor proceedings.
3. Upcoming RAV Consultation

The RAV office received significant public and municipal feed back on the RAV line in the Spring of 2003. Council's advice in July was part of this and formed an important part of the RFP document.

RAV will be consulting further with the public and various stakeholders starting next month. A budget has been set aside for this by RAVCO. The following key themes will be addressed:

· Access and Connectivity
· Safety and Security
· Local Area Context
· Urban Design between Stations
· Station Continuity and Distinction
· Environmental Issues
· Construction

Appendix C provides information on these themes.

The development of the consultation process is underway and will include for example, open houses and small group meetings with both new and existing groups of stakeholders.
The results of the consultation will be an important input into the BAFO stage as the consultation exercise will focus more on the details of potential alignment and station locations and other issues specific to the implementation of RAV.

Staff are working closely with RAV on the development of the consultation program to make sure issues of importance to the City and adjacent neighbourhoods are raised. For example, we want to hear from the residents of Cambie south of 46th Avenue, where the alignment may be at grade, in a trench, or elevated (south of 63rd Avenue) on specific measures they may have in mind to minimize potential impacts. Construction of stations in the downtown will have a major impact and so it will be important to hear from the business community and their associations on this matter.

PROPOSED CITY INVOLVEMENT AND STAFFING

RAV is a huge project, even compared to other major development initiatives in the city. The scope of work, including new tunnels under False Creek and much of the City, a new bridge over the Fraser River, and eight or nine new stations, exceeds the Millennium Line (four stations and an alignment parallel to a working railroad) and the Expo Line (rebuilt tunnel and eight stations largely in a previous rail corridor).

As described in the BACKGROUND, during the design and construction of the Expo and Millennium Lines, the City recognized the importance of having staff work closely with the Province and contractors. Staff brought a knowledge of local issues and an expertise of working with the public that achieved a better design that was more sensitively integrated into the community. This was particularly the case with the Millenium line.

It is recommended the City respond in a similar manner in the design and construction of the RAV Line.

Staff have participated in the RAV Project since its inception in 2000 using existing staff. Now that the RAV Project has been approved and the public sector funding in place, the Project has proceeded to the next stage of choosing a private sector partner. The accelerated project schedule and significantly increased number of tasks that need to be worked on are beyond what existing staff can respond to and ensure the City's and public's interests are addressed.

These tasks include, for example:

· Reviewing Environmental reports
· Working with RAV on finalizing the consultation programmes and participating in the programmes paying particular attention to the area south of 46th Avenue and the transportation hub at the waterfront.
· Responding to questions from the four proponents on matters particular to the City
· Participating in the review of the RFP and BAFO proposals. These review periods are very key steps in the procurement process and it is important the City participate in the review process to assure compatibility, fit and public amenities are identified. The proponents will be developing their cost estimates based on their RFP proposals and may be reluctant to make future changes.
· Working with other City staff on a potential redevelopment of the City Hall precinct integrated with the station at Broadway and a 2nd Avenue Station
· Participating in the analysis of, and development of a policy document on the proposed transportation hub at Waterfront Station
· Undertake discussions on permits, approvals, design review processes (urban design panel and development permit board), potential Heritage Alteration Permit for the Cambie boulevard, construction, subsequent consultation processes through the design and construction phases, formal agreements that may/will be required between the City and others, etc
· Developing a work program and budget for City involvement beyond the procurement phase (ie, during the detailed design and construction phases between 2005 and 2009 when the Line opens)

To participate in the above work, staff recommend a team from Planning and Engineering be formed comprised of a Project Manager, a Transportation Engineer, a land use Planner all full time and a part time urban design/development planner. Support staff are also recommended to be shared with the Downtown Transportation Plan implementation team.

If at the end of 2004 the RAV Project proceeds to detailed design and construction, staff would report back to Council on staffing, work program, and budget required to respond to the Project.

Finally, the proposed RAV alignment contemplates two stations adjacent to, or on City-owned properties: one at Broadway and Cambie and the second at 6th and Cambie. These sites are currently under developed and are being occupied by commercial tenants or by the City. The 6th Avenue site is a surface parking lot for the Police Department's head office and the Broadway site has been designated for a future City Hall and other commercial uses.

In order to ensure the proposed transit stations provide maximum opportunities for future development of these sites, the City's Real Estate and Facilities groups will retain an architect to assess the designs that are proposed by the proponents. Funding for such consultancy will be the Property Endowment Fund.

FINANCIAL AND PERSONNEL IMPLICATIONS

It is recommended that existing City staff be assigned to the RAV project and positions backfilled as noted under the New Funding column. The following 2004 budget is recommended (salaries include fringe benefits):

Project Manager (Civil Eng. III) $110 000
Civil Engineer II $94 000
Planner II (Land Use) $87 000
Planner II (Urban Design/Development) $87 000
½ Graphics Technician $28 000
Clerk Typist $40 000
Consultant Services $30 000
Office Space/support services $70 000
Public Consultation $5 000

Total (New Funding) $370 000

The Civil Engineer III, Planner II (Urban Design/Development) and Clerk Typist are all new temporary positions and whose classifications are subject to review with and approval by Human Resources.

RAVCO is prepared to provide a minimum of $150 000 to offset the City's costs through the Procurement Process so the net cost to the City will be $220 000.

CONCLUSION

The RAV Project is one of the most significant civil engineering and City building projects ever undertaken in Vancouver. It is critical that the City work closely with RAVCO to ensure the rapid transit line is sensitively integrated into a built out, stable urbanenvironment. In the past, the City has supported this role for both the Expo and Millennium SkyTrain lines.

Staff recommend a modest participation through to the end of the Procurement Process (now to the end of 2004) when a decision will be made to proceed to design and construction. For 2004, an equivalent of 5staff and a budget of $370 000 offset by $150 000 from RAVCO (net budget request of $220 000) is recommended. Note the Clerk Typist and Graphics Technician would be shared with the Downtown Transportation Plan implementation team.

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Link to appendices

tt20031104.htm

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© 2002 City of Vancouver