A1
ADMINISTRATIVE REPORT
Date : May 21, 1997
Dept. File No.
C.C. File No. 5750-1/1601-1
TO: Vancouver City Council
FROM: General Manager of Engineering Services, in consultation with
the General Manager of Parks and Recreation, the Directors of
Civic Theatres and the Office of Cultural Affairs, and the
Manager of Corporate Services.
SUBJECT: Canada-B.C. Infrastructure Works Program, Phase II -
Soft Infrastructure Projects
CONSIDERATION
A. THAT Council endorse the following City-initiated projects
for submission to Phase II of the Canada - B.C. Infrastructure
Works Program, and authorize staff to submit applications to
the Provincial government:
A project to improve Civic Theatres totalling either
$5,125,000 (Option 1.) or $3,500,000 (Option 2.); and
Park Board projects to improve the Kitsilano Community
Centre - $2,585,000, the Killarney Community Centre -
$8,600,000 and the Kerrisdale Community Centre -
$1,500,000.
Facilities Development projects to provide a Wide Area
Radio System including Radio Systems - $13,000,000, Radio
User Equipment - $10,000,000 and CAD/RMS Systems -
$5,000,000.
B. THAT Council endorse the following community-initiated
projects on behalf of cultural and community service
organizations that will be making their own submissions to the
Phase II of the Canada - B.C. Infrastructure Works Program,
noting that such endorsement does not commit the City to
funding the local share of capital costs or any increased
operating costs, beyond those already approved by Council:
Vancouver Museum Revitalization Program, Phase 3 -
$4,400,000; and
Children s Arts Umbrella, Facility Expansion -
$5,032,000.
COUNCIL POLICY
In 1994, Council approved endorsing soft infrastructure project
submissions to the original Infrastructure Works Program. These
submissions included both City-initiated projects, as well as
initiatives by cultural organizations that applied to the program
directly. Endorsement of the cultural organizations was on the
condition that such endorsement did not commit the City to funding
related capital or operating costs.
In 1995, Council requested the Federal and Provincial governments place
more emphasis on municipal infrastructure, provide more timely project
approvals and eliminate soft infrastructure projects from the program.
Council also endorsed an extension of the Infrastructure Program for a
further two or three year period.
PURPOSE
This report presents Council with an overview of recent information on
the soft infrastructure component of Phase II of the Canada-B.C.
Infrastructure Works Program, including changes to the amount of senior
government funding. It also presents Council with the option of
endorsing City-initiated and community-initiated soft infrastructure
project submissions to the program.
BACKGROUND
In February 1994, agreements between the Provincial and Federal
governments were signed to start the original Canada-B.C. Infrastructure
Works Program. Funding totalling $675 million (including the one-third
local share) was made available in British Columbian with funding
totalling $36 million (including the local share) awarded for the
following soft infrastructure projects in Vancouver:
City-initiated
Firehall Arts Centre $ 318,000
Vancouver East Cultural Centre $ 210,000
Collingwood Neighbourhood House $ 4,422,000
Emergency Operations & Dispatch Centre $10,000,000
SUB-TOTAL $14,950,000
Community-initiated (Endorsed by Council)
Arts Club Theatre Society (Stanley Theatre) $ 3,900,000
Vancouver Playhouse $ 450,000
Kiwassa Neighbourhood House $ 466,000
Pacific Space Centre $ 8,559,000
Vancouver Dance Centre $ 5,500,000
SUB-TOTAL $18,875,000
Community-initiated(Direct from Organization)
New Play Centre $ 495,000
Carousel Theatre $ 444,000
Jewish Community Centre $ 990,000
SUB-TOTAL $ 1,929,000
On June 13, 1996 Council approved proceeding with the replacement of the
City's radio systems for Police, Fire and Engineering at an annualized
cost of approximately $3.75 million, equivalent to an investment of
$22.5 million.
At its meeting on January 28, 1997, Council passed several motions in
support of the Federation of Canadian Municipalities efforts to extend
the Infrastructure Program, including:
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;
On April 18, 1997, the Mayor s Office received a News Release
announcing that an agreement between the Federal and Provincial
governments for Phase II of the Infrastructure Works Program had been
signed.
Information contained in the News Release included 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 Dec. 31, 1997;
there will be three components:
1. Local roads and cycling network
2. Cultural (Community)
3. Telecommunications and Transit
A list of Local roads projects, consisting of about $5.9 million in
City transportation projects and a $2.8 million Park Board road
resurfacing project, was endorsed by Council on April 22, 1997, for
submission to Phase II of the Infrastructure Works Program. Council
also endorsed $10.6 million in sewer project submissions for Hastings
Park (one City project and one Park Board project). In addition,
Council passed a motion to express to both levels of government,
reiteration of the City s preference for allocating funds to hard
infrastructure projects, and disappointment that full consultation with
municipalities did not take place.
Staff from the Provincial Government recently advised that two cycling
projects that the City submitted to their 97-98 Cycling Network Program
will be forwarded automatically for evaluation under the new
infrastructure program. The two projects were the English Bay Bike
Route and the Elliott/Slocan Bikeway. If they are approved under the
Infrastructure Works Program, the City s share of funding would be less
than under the Cycling Network Program, where costs are split 50/50
between the City and the Province.
Regarding the Cultural component, a Program Guide and Application Kit
for Community Projects was forwarded to municipalities on April 25th
(copy on file with the City Clerk). The general requirements for
eligible projects are those that construct, renovate or rehabilitate
libraries, museums, cultural centres or recreation centres. More
specific requirements and preferences are reviewed in the Program Guide
and are similar to those for the previous program. However, a major
change is that the proportion of funding available for soft
infrastructure has been reduced significantly. Compared to the previous
program, the overall amount of funding for soft projects has been
reduced from 15% to 10%, and the Provincial and Federal Government share
for individual projects has been reduced from two-thirds to one-third.
There is not a specific deadline for soft infrastructure submissions,
although applicants are advised to submit their information as soon as
possible. Similar to hard infrastructure projects, all projects must be
complete by March 31, 1998.
The Telecommunications and Transit component of the new program is
limited to upgrading BC Telephone service in remote areas and BC Transit
projects.
DISCUSSION
While Council expressed concern with the continuation of the soft
infrastructure component in an extension of the Infrastructure Works
Program, senior governments have chosen to include 10% of the total
funds for Community Projects. Civic Theatres, the Park Board,
Corporate Services (Facilities Development) and Social Planning
(Cultural Affairs) have expressed interest in applying for soft
infrastructure projects under Phase II of the Infrastructure Works
Program.
Civic Theatres Project:
In consultation with a core group of theatre users, consensus was
reached that the next phase of capital projects should focus on
improving the audience experience in aging venues. Further discussion
resulted in very strong support from the management and Boards to make
the redevelopment of the Queen Elizabeth Theatre auditorium and lobbies
the highest priority, along with the expansion of the crowded Playhouse
lobby and the addition of Salon/Meeting Rooms on the Hamilton Street
side of the complex, and including miscellaneous replacements of
obsolete stage equipment. The Director of Civic Theatres refers to this
as Option 1. .
Option 1. - QET Auditorium and Playhouse $ 5,125,000
The auditorium redevelopment involves removing the existing Mezzanine
seating area and installing a new intermediate Balcony or Dress Circle
bringing those seats closer to the stage for much better sightlines.
This will result in a much expanded Mezzanine Lobby, reclaiming floor
space lost in the 1986 renovation to control rooms and will add needed
washrooms. The result will be much closer to the original building as
it was before the 1986 redecoration. This project sets the stage for a
second phase which will re-configure the ceiling for improved acoustics
and will also add three tiers of boxes on the sides of the auditorium,
narrowing the hall and the stage to the size of the shows which are
presented.
This project improves acoustics, sightlines, intimacy and stage space
increasing the theatre s marketability and competitiveness, and making
the theatre more attractive to audience and presenter alike.
The Playhouse lobby expansion will extend the main lobby out under the
existing canopy to the sidewalk, adding about 600 sq. ft. There are no
impacts to the facade above the line of the canopy. In addition to
adding floor space, this will permit making the wheelchair accessible
washroom more accessible.
The Salon/Meeting room addition on the Hamilton St. involves renovating
the present Ticketmaster outlet and adding space under the canopy.
Addition of this space supports the resident performing arts companies
fund raising efforts by providing a segregated space, accessible from
both the QET and Playhouse lobbies, for entertaining their sponsors.
In the event that this project cannot be approved for any reason, Civic
Theatres is submitting an Option 2. at a lower cost.
Option 2. - QET Auditorium and Playhouse, and Orpheum $ 3,500,000
This alternative lower cost option is an assemblage of 14 independent
projects supportive of the same principle of improving the audience
experience at the theatres . All three theatres benefit. The expansion
of the Playhouse Lobby, the addition of the Salon/Meeting Room, and the
replacement of obsolete stage equipment are included from Option 1. .
Also included are Phase 1 of QET Lobby air conditioning (there is none
now); exterior and interior signage upgrades; exterior and interior
lighting upgrades; concessions stations upgrades to meet health code and
for efficiencies; Parkade upgrades to improve security and perform
structural upgrades; extension of the Hamilton Street canopy to Georgia
Street; installation of security systems; addition of the canopy
designed for the Smithe Street entrance to the Orpheum in 1983 but never
installed; upgrades to the Smithe Street entrance and lobby to eliminate
the steps down to the coat check (the scene of too many accidents) and
to improve audience flow into the theatre.
A great deal of the preliminary design and some amount of schematic
design for all of these projects was done in the original development of
the Civic Theatres Capital Plan. The Director of Civic Theatres notes
that they are in a position to proceed immediately to final design.
Park Board Projects:
The Park Board has three community centre improvement projects that they
would like to submit. These projects involve either supplementing or
expediting work approved in the Park Board s 1997-1999 Capital Budget.
1. Kitsilano Community Centre $2,585,000
A soft infrastructure grant would increase the existing 1997-1999
Capital Plan funding of $1,732,000 by $853,000 to $2,585,000. The
additional funds would permit an addition of 4,200 sq.ft. of program
space beyond what can be built with the present budget. Presently
expressed needs include a 3,000 sq.ft. multi-purpose/fitness/dance room,
a 1,000 sq.ft. Youth Games Lounge, a 1,000 sq.ft. Seniors Lounge, and a
doubling in size of the present exercise equipment space.
2. Killarney Community Centre $ 8,600,000
A soft infrastructure grant would increase existing 1997-1999 Capital
Plan funding of $5.9 million by $2.7 million to $8.6 million. The
estimated cost of all the improvements for the next phase of the
redevelopment of the Centre is $4.0 million. Phase 2, rebuilding of the
ice rink, will require the removal and replacement of the existing walls
and roof structure with a new structure that will meet today s seismic
requirements.
Although the funds would fall short of the estimated total requirement
for Phase 2, the community would be prepared to take the initiative to
raise the remaining funds needed to carry out this important public
safety improvement.
3. Kerrisdale Community Centre $1,500,000
A soft infrastructure grant would increase existing 1997-1999 Capital
Plan funding of $1.0 million by $500,000 to $1.5 million. The existing
Capital Plan funding would provide miscellaneous renovations to the
existing program spaces to improve efficiency and service in this aging
building. Additional funding from the infrastructure program would
provide a potential 5,000 sq.ft. of renovated program space, and would
significantly increase the Centre s ability to rejuvenate a large part
of its outdated and under-utilized space. The total cost for this
project has been estimated at $2,700,000, so the proposed funding still
falls far short of the centre s needs.
Facilities Development Projects:
1. Wide Area Radio - Phase I $13,000,000
Most existing radio systems do not have the modern capabilities
considered basic requirements for emergency communications systems.
Automatic vehicle location, mobile data capability, and full function
terminals in emergency vehicles are key elements in a modern system.
Radio spectrum in the region is limited, and the present utilization of
this critical resource is very inefficient, with most systems using old
technology that allows some channels to remain under utilized while
others are overloaded. The concept of a shared, wide area radio system
for voice and data transmission arose through the joint efforts of the
City of Vancouver and the RCMP, with the support from the Attorney
General's Ministry. By using current technology the system will maximize
available channel capacity and meet the current and future radio needs of municipal services within the GVRD, and police and ambulance services
across the RCMP's Lower Mainland District.
Coverage requirements for radio systems in the GVRD overlap. The RCMP,
in its role as a federal and provincial police force, requires coverage
throughout the entire region, as well as the municipalities that it
polices directly. A regional system allows maximum use of very scarce
radio spectrum. At present, most agencies in the region are using
systems which make very inefficient use of this scarce resource. Modern
systems use computer technology to assign conversations to channels, so
that all channels are fully utilized. Without this technology, it will
not be possible to meet the needs of all users within the radio bands
normally used for emergency communications. Some users will be forced
into systems where equipment for emergency services is not readily
available, and where full intercommunication between agencies and
jurisdictions cannot be provided.
The budget for the Wide Area Radio assumes the implementation of the
first phase of the wide area system, for the GVRD area only. The funding
will provide for the Vancouver share of the voice radio system and
mobile data system including a switch to accommodate the GVRD System.
2. Radio User Equipment $10,000,000
The user equipment will provide radio equipment for Vancouver Police,
Vancouver Fire and Vancouver Engineering. It includes mobile radios,
portable radios, mobile data equipment, dispatch centre equipment and
logging, recording and ancillary equipment.
3. CAD/RMS Systems $ 5,000,000
The consolidation of the dispatch operations for the Vancouver Police,
Vancouver Fire and Rescue Services, the RCMP and possibly BC Ambulance
Service into the new Emergency Operations and Communications Centre has
resulted in a need to replace the current CAD/RMS systems with an
integrated Computer Aided Dispatch System and Records Management System
(CAD/RMS) to Police, Fire and Ambulance agencies. The CAD/RMS will
support upgrades to the existing dispatch operations of the
participating agencies, support integration of those dispatch
operations, and support remote standalone dispatch operations where
required. The CAD System will be capable of supporting the dispatch
needs of all future emergency services radio system users, including
RCMP, municipal fire agencies, municipal police agencies and the BC
Ambulance Service.
In addition to the above City-initiated projects, staff recommend that
Council consider endorsing the following community-initiated submissions
noted in Consideration item B :
Cultural Projects:
1. Vancouver Museum Revitalization Program - Phase 3 $4,400,000
Council has approved a $3 million allocation in the 1997-1999 Capital
Plan for the Vancouver Museum Revitalization Project. $1.34 million has
been approved from the 1997 Capital Budget for Phase 1 and Phase 2 of
the Revitalization Program. Seeking assistance from the Infrastructure
Program enables the Museum to accelerate the next phase of their
project, without requiring any additional funds from the City, beyond
what Council has already approved. The local share will be funded
through the balance of funding in the existing Capital Plan
($1.66 million) and through private funds donated to date ($1.35
million). Infrastructure Program assistance will enable the Museum to
move more quickly to realize their goal of a revitalized museum with
much needed improvements to a City-owned building.
Phase 3 includes the infill of B-wing to create additional gallery and
dedicated educational program areas as well as upgrades and improvements
to the base building systems (sprinklers, mechanical, communications and
loading).
2. Children s Arts Umbrella - Facility Expansion $ 5,032,000
Council provided a 1996 Capital grant of $72,000 to Children s Art
Umbrella. This grant has not been released as it was conditional on
support from other levels of government. Seeking funding through the
Infrastructure Program helps fulfill the condition for the City s grant,
and assists this organization with expanding their very successful
programs for children. The balance of funding for the local share would
be raised through a private sector donation campaign.
The expansion program adds 28,000 square feet of classroom and
performance space and wires the facility to accommodate new
technologies for on-site and distance learning.
FINANCIAL IMPLICATIONS
In general, guidelines for the program state that funding for the local
share must be in excess of current capital budgets or at least represent
accelerated funding.
City-initiated projects would be funded as follows:
Civic Theatres Project
The Director of Civic Theatres proposes that the 2/3 local share for
their project submissions can be funded from an internal loan against
revenue from Civic Theatres ticket surcharges and parking fees, up to
a maximum of $3.5 million, on terms acceptable to the Director of
Finance. This would be sufficient to cover the local share for either
Option 1. or Option 2. in their proposed submission. There are no
increased operating costs associated with this submission.
Park Board Projects
Funding for the Kitsilano, Killarney and Kerrisdale Park Board projects
would come from existing authorities in the 1997-1999 Capital Plan.
Once the extent of Park Board project awards are known, staff will
report back on details of funding, in consultation with the Director of
Finance. Any ongoing operating costs associated with these submissions
would be funded from added basic budget increases, which would be
reported back on.
Facilities Development Projects
Council has approved funding for the City's share of the financing costs
for the Wide Area Radio System. Details of the financing for these
works will be reported later by the Director of Finance.
Cultural Projects
Endorsing community-initiated cultural projects does not commit Council
to funding beyond what has already allocated through the 1997-1999
Capital Plan and outstanding Capital Grant assistance.
CONCLUSION
The continuation of the Canada-B.C. Infrastructure Works Program
provides an opportunity to improve the infrastructure of the City s
cultural and community facilities. The share of funding that the
Provincial and Federal governments provide has been reduced from
two-thirds to one-third. Notwithstanding Council s earlier concerns
with respect to soft infrastructure funding, staff believe that this
opportunity can provide for needed assistance and submit projects for
Council s consideration.
Although staff attempted to provide as complete a list as possible, the
time frame for preparing these submissions was short. This was
considered necessary, in order present a list of potential City
submissions as soon as possible , as per the instructions in the Guide
for the Infrastructure Works Program. If Council approves submission of
soft infrastructure projects, some further community-initiated projects
may be submitted for Council endorsement.
Once any project awards are received, Engineering Services, would report
back on the details of funding, in consultation with the Director of
Finance and the appropriate department heads.
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