ADMINISTRATIVE REPORT
Date: April 21, 1997
Dept. File No.
CC File No. 5750-1
TO: Vancouver City Council
FROM: General Manager of Engineering Services
SUBJECT: Enhanced Canada-B.C. Infrastructure Works Program
RECOMMENDATION
THAT Council endorse the prioritized list of transportation
projects and the Hastings Park sewer project in Appendix A, for
submission to the Enhanced Canada - B.C. Infrastructure Works
Program, and authorize staff to submit applications to the
Provincial government.
COUNCIL POLICY
In 1985, Council endorsed the Federation of Canadian Municipalities
(FCM) initiative to take steps to halt the significant decline in the
condition of infrastructure in urban areas, placing emphasis on
maintenance and reconstruction as opposed to new construction, in
partnership with senior governments.
In 1993 and 1994, Council reiterated this position to the Federal and
Provincial Governments, and noted the need for municipal involvement in
the Management Committee reviewing projects for the Infrastructure Works
Program.
In 1995, Council again informed the Federal and Provincial Governments
of the City s views regarding the Infrastructure Program, including a
request to place more emphasis on municipal infrastructure and provide
more timely project approvals.
PURPOSE
This report presents Council with an overview of recently released
information on the Enhanced Canada-B.C. Infrastructure Works Program,
and recommends approval of a prioritized list of projects for submission
to the program.
BACKGROUND
As part of the 1987-1990 Capital Plan, voters approved a $10 million
borrowing plebescite for cost-sharing infrastructure improvements with
senior governments. In February 1994, agreements between the Provincial
and Federal Governments were signed to start the first Canada-B.C.
Infrastructure Works Program. Funding totalling $675 million was made
available in British Columbia. Public works awards to the City were
received for sewer separation ($12,000,000), left turn bays and arterial
street realignment($1,350,000) and the Port Roadway/Transit Lane
($840,000). The majority of this work has been completed.
On January 6, 1997, the FCM forwarded a communique to Mayors in cities
across Canada, informing them that the Federal Government had made an
offer to the Provinces to extend the Infrastructure Program. The
communique also stated concerns that some provinces may hesitate or
propose initiatives that do not address municipal needs. Based on this
communique and the City s own concerns, Council passed several motions
regarding extension of the Infrastructure Program on January 28, 1997:
THAT the Mayor write a letter to the Federal and Provincial
Governments informing them that Council supported the
Federation of Canadian Municipalities (FCM) resolution on
renewal of the National Infrastructure Program;
THAT the Mayor's letter to the Federal and Provincial
Governments also reiterate the City s previous comments that
there be municipal representation on the Management Committee
reviewing projects submitted under the Infrastructure Works
Program, that the only priority be for projects that replace
existing, deteriorating municipal infrastructure, and that
soft infrastructure projects be eliminated;
THAT Council request the Union of B.C. Municipalities to
provide the municipal representation on the Infrastructure
Works Program management committee; and
THAT the General Manager of Engineering Services report back
to Council, in consultation with the Director of Finance, on
details of the projects, and the source of the City s share of
funding for projects.
Accordingly, letters from the Mayor were sent to the Federal and
Provincial governments, and the Union of B.C. Municipalities.
On March 25, 1997, the Minister for Transportation and Highways, the
Minister for Municipal Affairs, and a delegation headed by the president
of the Union of B.C. Municipalities (UBCM) met to discuss the terms and
status of the Gederal Government offer to enhance the Canada-B.C.
Infrastructure Works Program. At this meeting, the ministers expressed
concerns regarding the Federal Government s requirement that all
projects be completed by March 31, 1998, and the limitations this put on
the level of consultation that the UBCM would have preferred.
In anticipation that a new agreement would be signed shortly, and in
acknowledgement of the very brief window for project construction, a
Program Guide and Application Kit was forwarded to municipalities in
advance (copy on file with the City Clerk). This kit was received by
the City on April 11th, and gives a deadline for submissions of April
22nd. It covers only the transportation component of the program. The
general content is similar to the original Infrastructure Works Program
kit.
On April 18th, a local newspaper article indicated that the signing of
the agreement for the Enhanced Canada-B.C. Infrastructure Works Program
would be announced later that day. It also noted that $85 million or
55% of the $155 million in program funding would be allocated to
improving transit services ($25 million for new buses and $60 million to
other transit improvements such as park-and-ride facilities and transit
terminals). Subsequently, the Mayor s Office received a News Release
dated April 18, 1997 announcing that the top-up to the program had been
signed.
New information contained in the News Release includes the following:
- projects already earmarked under the Province's expenditure
plans will be accelerated to meet the requirement for completion
in their 1997/98 fiscal year;
- this phase will focus primarily on road and transit
improvements;
- projects will be reviewed by a committee with representation
from both the Provincial and Federal governments;
- proposed projects must be approved not later than December 31,
1997;
- there will be three components: (1) Local roads and cycling
network, (2) Cultural and (3) Telecommunications and Transit;
and
- there is not a hard deadline for applications, but applicants
should submit their information as soon as possible.
The "local" roads component is the only component covered in the Program
Guide and Application Kit that the City received earlier.
DISCUSSION
As with the original program, the Federal, Provincial, and local
governments would each contribute one-third of the total program
funding. Also, projects must represent new or accelerated investment,
result in short term job creation, and develop physical infrastructure.
The "local" roads guidelines note that the purpose of this component of
the Infrastructure Works Program is "to assist municipalities in the
construction of major roads by sharing the cost of new roads, additional
traffic lanes on existing roads, and upgrading of existing poor standard
roadways". Further, funding will be available for major roads in the
following order of preference:
1. Planned in accordance with Official Community and Regional
Plans, containing a transportation component;
2. Planned in accordance with approved transportation network
systems, where no Official Community or Regional Plan exists;
and
3. Others which are determined to be of community wide
significance and demonstrated necessity.
Based on the guideline's emphasis on new construction, they still do not
meet Council's intent with respect to giving top priority to the
replacement of deteriorating municipal infrastructure. This concern has
been raised numerous times to Provincial and Federal Government
officials over the last three years by both Council and staff.
Accordingly, it is disappointing to see that our requests have not been
incorporated.
Although the Program Guide and Application Kit that the City received
only considers the "local" road or transportation component of the
Infrastructure Works Program, staff feel that a sewer reconstruction
project in Hastings Park is also a very strong candidate for a potential
project. This project would help support the Park Board s plans to
daylight a stream in the park, which has strong community support.
The projects listed in Appendix A take into account the program
requirements with respect to completing all work by March 1998, the
short notification received, other eligibility guidelines, and City
priorities for infrastructure replacement. The General Manager of
Engineering Services recommends that Council endorse the prioritized
list of transportation projects and the Hastings Park sewer
reconstruction project. Staff will be submitting the City s projects
immediately after Council's approval, since the deadline is the same day
as Council's meeting. Staff will also be including two submissions from
the Park Board in the package that is sent out. These two projects are
also noted in Appendix A for Council's information.
FUNDING
Guidelines for the enhanced Infrastructure Program state that funding
for the municipal share of projects must be in excess of existing
capital budgets or at least represent accelerated funding. A total of
$296,000 in existing funding remains from the $10 million infrastructure
borrowing authority approved as part of the 1987-1990 Capital Plan.
Without knowing the details regarding all the components of the enhanced
Infrastructure Works Program, and the exact amount of funding that would
be needed, it is not possible to report any further information on
funding at this time. The Director of Finance indicates that any
additional funding for new streets infrastructure projects would have to
come from existing authorities. This means that Council may have to
make substitutions within the existing Capital Plan if the City s share
of awards exceeds $296,000.
Once details of all the components of the enhanced Infrastructure Works
Program are known, and as project awards are received, Engineering
Services, will report back on the details of funding, in consultation
with the Director of Finance.
* * * * *
APPENDIX A
SUMMARY -
TRANSPORTATION PROJECTS & HASTINGS PARK SEWER PROJECTS
FOR ENHANCED INFRASTRUCTURE WORKS PROGRAM
TRANSPORTATION
1. Commercial Drive Bus Bulges $ 300,000
Installs bus bulges along the retail portion of Commercial Drive. This
project would improve bus service by eliminating the need for buses to
merge in and out of traffic in this area. It would also allow for wider
passenger loading areas at stops, outside of the existing a sidewalk.
Among the benefits are greater flexibility in the design of bus
shelters, and increased space on the existing sidewalks for pedestrians.
Accordingly, this would help promote transit use in the area, and
improve pedestrian conditions along this retail strip.
2. Powell Street Pavement Reconstruction $ 700,000
Reconstructs the pavement on Powell Street between Rogers Street and
Commercial Drive. This project will reconstruct the portion which has
deteriorated past the point where normal maintenance is worthwhile.
This improvement will benefit goods movement to the Port and local
businesses. In addition, this section of street is also a transit
route.
3. Traffic Signal Management System $1,000,000
The first phase of the $3,000,000 upgrading of the Traffic Signal
Management System (TSMS)was approved in the 1997 Capital Budget. This
project accelerates the final phase to complete all upgrading of the
TSMS this year. The new TSMS will provide improved service for
pedestrian and cyclist signals, bus priority, emergency vehicles, and
will be able to communicate with other lower mainland systems to help
implement Transport 2021 strategies.
4. Burrard Bridge Seismic Upgrading, Phase III $3,100,000
Completes the seismic upgrading of Burrard Bridge, which is a historic
landmark and major access route to downtown. This project would bring
the bridge approaches up to current seismic standards. It would prevent
the collapse of the concrete approach spans in a major earthquake.
This would be the last of the major seismic bridge upgrading projects
for the City.
.../2
Appendix A - Page 2
TRANSPORTATION (continued)
5. Downtown Historic Railway Streetcar $ 280,000
Constructs a permanent building for display of the heritage streetcar
leased by the City, provides further restoration of the streetcar,
installation of an overhead trolley power system, drainage improvements
and related improvements for pedestrian access from Leg in Boot Square
and Granville Island.
6. 49th Avenue Pavement Reconstruction $ 540,000
Reconstructs the pavement on 49th Avenue between Prince Albert and
Windsor, and Sophia and Frederick. These two sections of 49th require
reconstruction which will benefit transit usage along this route and
east/west circulation in this area.
TOTAL TRANSPORTATION $ 5,920,000
SEWER
1. Hastings Park Sewer Infrastructure Reconstruction $5,000,000
Replaces the existing deteriorated combined sewer located in Hastings
Park. A new sanitary sewer would be constructed, while storm water
would be directed to the original stream which would be opened up by the
Park Board (see below). Reconstruction would help reduce combined sewer
overflows and City assessments for dry weather flows to Iona Sewage
Treatment Plant.
PARK BOARD
1. Hastings Park Biofiltration for Storm Water $5,000,000
This work would be done in connection with the sewer construction
projects noted above and would complete day lighting of the old stream
through the site. The biofiltration system will collect and clean the
storm water, such that the water entering the stream will be of very
high quality. Re-establishment of the Hastings stream will provide
long-term aesthetic and recreational benefits. The local share of this
project would be funded by the Park Board.
2. Stanley Park - Park Drive Road Resurfacing $ 2,770,000
Resurfaces the existing deteriorated road surface, and installs new curb
and gutter, and sidewalks where needed, and provides additional
wheelchair accessible transit stops.
* * * * *