Review of Engineering Services Infrastructure Programs in P...

RR-2(ii)
ADMINISTRATIVE REPORT

Date: May 30, 1996

TO: Vancouver City Council

FROM: General Manager of Engineering Services

SUBJECT: Review of Engineering Services Infrastructure Programs
in Preparation for the 1997-1999 Capital Plan

RECOMMENDATION

A. THAT the Capital Plan and Long Range Plan Update reports in
Appendix 1. - Water, Appendix 2. - Sewer and Appendix 3. -
Street Lighting & Undergrounding, be considered by Council
and the Staff Review Group in the preparation of the
1997-1999 Capital Plan.

B. THAT the City pursue with the Greater Vancouver Water
District the adoption of permanent lawn sprinkling
regulations.

COUNCIL POLICY

General

In June 1995, Council directed departments to use CityPlan to guide
policy decisions, corporate work priorities, budgets and Capital Plans.
Although there is no specific direction in CityPlan for the replacement
of infrastructure, the direction for Financial Accountability calls for
the efficient delivery of City services.

Water

The City water system operates as a utility, with costs recovered
through its rates and fees, and borrowing approved by Council.

In March 1993 Council approved the implementation of a City water
conservation program, and adopted the GVRD Water Shortage Response Plan
to regulate lawn watering during the summer months.

In July 1993 Council approved the 1994-1996 Waterworks Capital Plan,
based on the Waterworks Long Range Plan (LRP). The LRP was presented
to Council for information in 1992.

The CityPlan direction for Clean Air & Water calls for expanding water
conservation programs.

Sewer

In the early 1970's, Council approved the policy of separating sanitary
and storm sewers to begin reducing and eliminating combined sewer
overflows.

In 1981, the above-noted policy was reaffirmed with the adoption of the
1% life cycle replacement policy for sewer mains as part of the Sewers
Long Range Capital Plan.

Both of the above sewer policies were reaffirmed in the 1991 Policy
Report on Vancouver's Design and Service Level Standards for Sewer
Collection Infrastructure .

The CityPlan directions for Clean Air & Water and Vancouver and the
Region, call for making environmental improvements a priority in
decision-making, in part by reducing combined sewage overflows to
surrounding water bodies by continuing to separate storm runoff and
sewage systems.

Street Lighting

The Safer City task Force indicated the importance of making people
feel more secure and taking proactive measures in providing appropriate
street and bus shelter lighting to protect people from violence.

The CityPlan direction for Working Together to Promote Safety calls for
including better street lighting at transit stops.

Streets

Bicycles/Greenways

The Vancouver Comprehensive Bicycle Plan (1988), the Clouds of Change
Report (1990), the City-wide Bicycle Network (1992) and the Greenways
Program (1995), established the City's policy of promoting and
encouraging cycling as a transportation alternative.

Safety and Congestion

The City has a policy of improving safety at intersections by
constructing left-turn bays, subject to a review of the design.

Neighbourhood Traffic Controls

The City has a policy of protecting neighbourhoods from short-cutting
with the installation of traffic controls such as traffic circles,
diverters, and right-in/right-outs etc.

PURPOSE

The purpose of this report is to provide Council with information on
Engineering Services' water, sewer ,street lighting and streets
infrastructure programs. This report also gives Council an opportunity
to provide feedback on these programs to the Staff Review Group, that
will be considering submissions for the 1997-1999 Capital Plan. A
recommendation regarding lawn sprinkling regulations, which forms a key
part of the strategy for the Capital Plan for water, is also
included.

BACKGROUND

The infrastructure works programs for water, sewer, street lighting and
communications, and streets are a major component of the City's
expenditures. Funding approved in the 1994-1996 Capital Plan was as
follows:

Waterworks - $ 51,620,000
Sewers - $ 42,520,000
Street Lighting & - $ 6,928,000
Communications
Streets & Bridges - $ 58,588,000
$159,656,000

Overall, these programs accounted for about 70% of the $229,650,000 in
total funding provided in the 1994-1996 Capital Plan.

All components except water form part of the base Capital Plan for
which Council has established a $175 million financial limit. Program
and project expenditure submissions will be reviewed as part of the
staff review process, with recommended funding levels forming part of
the draft plan to be submitted to Council in July.

Waterworks submissions will also be considered by the Staff Review
Group, however that consideration will be outside the financial limits.
In consultation with the Director of Finance and the General Manager of
Engineering Services, the Review Group will recommend a set of projects
and an appropriate funding level. This recommendation will give
consideration to the City's needs and the capacity of the water utility
to absorb an increase in debt charges.

In preparation for the work that will be done by the Staff Review Group
, staff from Engineering Services and Finance have discussed the
process for arriving at these recommendations. It was agreed that it
was important to update Council on major replacement programs such as
sewer and water. It was also recognized that any comments from Council
on these programs would be helpful input for the Staff Review Group.

DISCUSSION

Engineering staff have prepared detailed reviews which are appended to
this report for Engineering's water, sewer and street lighting
infrastructure programs. Each appendix provides a review of the
program's history, objectives, accomplishments and recommended
strategies. This report also contains a brief overview of the streets
program. The communications program has not been included, since it is
currently the subject of a consultants' study which will be reported on
separately.

General

Engineering's programs for water, sewer, street lighting and streets
infrastructure are fundamental and essential functions for public
health and safety, environmental protection and the economic well being
of the City. In Vancouver the infrastructure for these facilities is
almost fully developed. As a result, the emphasis of our Capital Plans
is on ensuring this infrastructure is replaced or upgraded as
necessary, to maintain existing levels of service and accommodate
growth.

The City's infrastructure has a limited life, and must be replaced
continually in an efficient and cost effective manner. Our replacement
strategy is based on the following criteria:

- replace infrastructure at a time that minimizes total costs
(operating, capital, and liability)
- maintain a relatively stable and skilled workforce
- equalize expenditures to stabilize funding requirements

This strategy has allowed the City to avoid problems experienced in
other North American cities. Some cities have found themselves in the
situation where they face extensive investment requirements and
financing difficulties, as a result of deferring replacement and
upgrading until a crises situation develops. The labour applied to
these projects is inefficient because of the short, intense duration,
and this has a negative impact in retaining the specialized skills that
are necessary from both City and private sector crews. Accordingly, it
is not surprising that effective infrastructure replacement programs
are one of the key items considered when reviews are done for the
City's credit ratings.

Water

The average life expectancy of our water system's components is
approximately 70 years. A uniform infrastructure replacement program
at a rate of 1.5% of the value of the system per year will provide
relatively constant funding needs as well as the ability to effectively
manage the maintenance of the water system. During the 1994 - 1996
Capital Plan we replaced about 0.9% of the system per year. Although
less than our 1.5% goal, this was significantly better than our 0.5%
replacement rate during the 1980's. The 1997 - 1999 Capital Plan
proposal includes funding to attain 1.5% annual replacement. This is
proposed through increasing transmission main replacement, which was
deferred during 1994 - 1996 due to a lack of senior government
cost-sharing.

The proposed 1997 - 1999 Waterworks Capital Plan will generally
continue to follow the principles and timing contained in the 12-year
implementation of the Waterworks Long Range Plan (LRP). The most
significant proposed change is with respect to the construction of
City-owned storage, which has been deferred from the 1997-1999 Plan by
optimizing City and District transmission projects (a $17.4 million net
deferral). As a result, it is proposed that infrastructure replacement
funding be increased to meet our 1.5% goal, rather than continue a
reduced infrastructure program to help accommodate funding the storage
project. The Dedicated Fire Protection System and other alternate
water supplies for emergency preparedness are proposed to continue in
accordance with the LRP schedule.

In addition to undertaking capital improvements to address system
deficiencies, the City is working aggressively to manage water demand
through conservation initiatives. These have had very positive
results, reducing average per capita demand from as high as 178 gallons
per day (in 1987) to 141 gallons per day (in 1995), and reducing peak
hour demand for the whole City from about 200 million gallons per day
(prior to 1992) to about 150 million gallons per day (since 1992). The
peak hour demand has been significantly reduced by lawn sprinkling
regulations, which permit only half the City to sprinkle on any
watering day. To ensure that historically higher peak demands do not
recur, we are recommending permanent adoption of the sprinkling
regulations throughout the GVWD.

Sewer

Vancouver's sewer infrastructure is comprised of 1,800 kilometers of
main sewers, 27 pumping stations, 100,000 property connections, 45,000
street drain connections, and 25,000 manholes. In order to maintain
the system, a comprehensive capital replacement program is necessary.
The main sewer portion of the infrastructure is a key component of the
system. The life expectancy of new main sewers is about 100 years,
which forms the basis for Vancouver's 1% per annum life cycle main
sewer replacement policy. This policy has been effective in preventing
serious collapse of sewers as well as addressing flooding problems
throughout the City. In addition, it is a major factor in the City's
pollution abatement program with regard to sewage overflows to
Vancouver's local water bodies.

Environmental issues are now becoming more of a concern to the general
public. Because a large portion of Vancouver's sewer system is still a
combined system (a single pipe in the street which carries sewage and
stormwater mixed together), sewage overflows occur during significant
rainfall periods. With the City's ongoing 1% main sewer replacement
program, the combined system is gradually being replaced with a two
pipe system to separate the sewage from the stormwater. This results
in a continuous reduction and eventual elimination of our sewage
overflows. This program is also in accordance with Provincial policy
and objectives. A new Liquid Waste Management Plan is being developed
for the region and is expected to form new Provincial regulations
regarding our combined sewage overflows. Our program is expected to
significantly reduce the need for much larger capital expenditures to
deal with these overflows. In addition, as sewer separation proceeds,
ground water inflow from building drain tiles and other storm systems
will be eliminated from the sanitary system. This will result in a
reduction in dry weather flows to the Iona Sewage Treatment Plant,
which will reduce Vancouver's annual Regional District sewerage levy.

The program follows CityPlan directions by making environmental
improvement a priority, with particular attention to water quality.
The CityPlan direction for Financial Accountability is also
complemented. The program's strategy of selective replacement of the
most deteriorated and inadequate sewers, combined with timely and
effective maintenance, has worked well over the last decades. We have
been able to provide the required service to the citizens as well as
pollution abatement benefits at a minimum and equitable cost.

Street Lighting

As with all city infrastructure, the street lighting plant is aging and
many components are now past their estimated service life. All street
lighting components have a 2% replacement rate. The previous Capital
Plan recognized that a 2% replacement rate required a considerable
increase in budget and workforce. Accordingly, the 1994-1996 Capital
Plan approved an infrastructure replacement program based on a 1%
replacement rate, with an inspection program to identify the highest
priorities. The 1997 - 1999 Capital Plan continues with the direction
established in the previous Capital Plan and requests funding for a 1%
replacement rate.

The 1997-1999 Capital Plan emphasizes infrastructure replacement
programs such as street lighting poles, service panels and conduit.
Funding is proposed for coordination of street lighting relocations
with other utility companies replacement programs, and for the City's
share of new lighting projects which are approved through the local
improvement process. This Capital Plan also continues the successful
Infill Lighting program which addresses public safety concerns
regarding localized lighting issues brought forward by residents, the
Safer City Task Force, CityPlan and other community programs such as
Greenways and Bikeways.

Undergrounding

It has been Council's policy and practice to provide a 1/3 funding
level for undergrounding projects along with 1/3 funding from the
utility companies and 1/3 funding from the property owners. Streets
undergrounded include Beach Avenue, Georgia Street, Upland Drive, and
N.W. Marine Drive. Generally, three to five projects are submitted
over the life of a Capital Plan.

Streets

Transportation policy has evolved over the years to meet the demands of
vehicular, bicycle and pedestrian traffic modes. The future
Transportation Plan being developed now, will continue to ensure
infrastructure is in place to be consistent with the goals of City
Plan, Transport 2021, and public need. The street system will continue
to be required to evolve to effectively accommodate the various traffic
modes while minimizing costs of both capital works and maintenance.

The city street system is an integral part of the transportation system
in the city and is the most visible of the city's infrastructure
components. The street system, which currently measures 1187 kilometres, has evolved as the city has grown. Few new streets are
being created, but changes to streets are required to meet the demands
of redevelopment. The street system is dynamic and must respond to
changing travel needs, safety, public demands, increasing vehicle
loading, and unstable soils. Maintenance can accommodate some of these
pressures, but in order to extend the life of existing streets and
sidewalks, and meet the changing needs and expectations of a growing
city, a capital investment must continue to be made.

Streets are facing pressure for change and improvement to:

(a) the street layout to accommodate pedestrians and cyclists, calm
traffic in neighbourhoods and improve arterial safety;

(b) the road structure, to meet the increasing demands of heavier
vehicle loading particularly buses;

(d) the general condition of streets and sidewalks, which has
deteriorated over the past 10 years.

The 1997-99 Capital Plan would balance the need to increase the level
of infrastructure funding in some areas with reductions in others, and
respond to new programs and demands. The major focus of this report is
to identify how the 1997-99 Capital Plan would ensure basic
infrastructure does not deteriorate further.

Arterial street improvements are being requested for a few locations,
primarily major transit corridors where bus delays can be reduced or
safety can be improved. Several innovative transit projects are being
discussed with BC Transit, and can begin implementation over the next 3
years.

Local and arterial street reconstruction funding is required to respond
to the accelerating deterioration of pavements. Most streets were
constructed many years ago, to meet then current standards of the low
cost paving program, and are now wearing out from higher traffic loads
and volumes. To help reduce future concerns, construction methods and
materials are being improved and engineered pavements are more common.
Pavement technology is changing and innovative pavement design can
reduce rutting and extend the life of the asphalt pavements. A new
category in this Capital Plan would see pavement research efforts
increased in order to develop longer lasting, better life cycle cost
streets by incorporating more cost effective materials and methods.

Seismic upgrading and improvements to bridges and major structures will
decrease as this infrastructure is now in relatively good condition,
compared to streets, following expenditures in past Capital Plans.
Only the Burrard Bridge approach spans have not been fully upgraded to
be serviceable after an earthquake. Funding for this project is
proposed in this Capital Plan.

A major increase is being requested to respond to pedestrian and
bicycle infrastructure, including $11 million for Greenways. Although
the number of sidewalk reconstructions and local improvements remain
stable, cycling, and pedestrian improvement funding requests are
higher. Increased tree planting and street greening is desirable, but
further work needs to be done to address the impact of tree roots on
sidewalks. Sidewalk damage is resulting from more new street trees, a
tenfold increase in the last seven years, and the maturation of
existing trees.

Local street reconstruction remains stable while traffic calming
funding increases to meet neighbourhood requests. The Residential
Streets Program, piloted on Garden Drive, is in its infancy and the
added flexibility, is expected to change the look of local
improvements.

The Residential Lane Local Improvement Program, which surged in the
1970's has dropped to a stable level in recent years, however, the
failure of lanes constructed 25 years ago is emerging as a future
infrastructure demand. To meet this need, reconstruction local
improvements are being considered, as is done with sidewalks.

There are two Special Projects, the Powell Street Grade Separation near
Raymur Street and the Downtown Heritage Railway, proposed for this
Plan. The grade level rail crossing at Powell Street is rated a high
priority by the National Transportation Authority (NTA), based on
national standards used to assess safety. The Grade Separation would
reduce the daily conflicts among the 16 trains and 32,000 vehicles at
the existing crossing. The Downtown Heritage Railway project would
provide funding to help construct and begin operation of the streetcar
system along the existing 6th Avenue rail line and First Avenue.

All of the above works attempt to maximize the useability and safety of
the infrastructure while beautifying the city with additional
landscaping and street trees. While the demands on the program
continue to increase, there is also the need to maintain the existing
street infrastructure for public use in a cost effective manner that
minimizes future maintenance. The proposed 1997-1999 Capital Plan for
streets is intended to serve both these needs.

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