Documents

 [ Westside Main Page | Westside Forums | Westside Documents ]

Engineering Services Department
Capital Works Servicing Process

 I. BACKGROUND <top>

 It is the goal of the Regional District to ensure an environment of fairness and equity exists whenever dealing with the general public. This goal is often difficult to attain when providing urban services as each project is affected by a different combination of obstacles. These obstacles, which may be physical, analytical, or financial in nature, often result in the public perception that there is an inequity in how they are being treated. Some of the obstacles which may have an impact on any given project are:

• number of properties included in a particular service area;
• topography and geological aspects of the area;
• proximity of the service area to existing works;
• funding options available to the Regional District;
• funding available from the Provincial and Federal levels of government; and
• fluctuations in tender prices.
  

It is imperative that the public are assured that, though there are some unavoidable differences associated with every project, the Regional District follows a standard process to ensure they are being treated in the same manner as other residents.

Over the past several years Regional District staff has worked on developing a standard process for providing capital works services to the residents of the Regional District. This process was developed to ensure residents are:

• provided with servicing in a fair and equitable manner; and
• provided with ample opportunity for input.

This document has been prepared to outline the process followed by the Regional District Engineering Services Department when providing urban services to the residents of the Regional District. Each of the following sections includes background information followed by the formal policy for that section.

 II. PUBLIC CONSULTATION  <top>

The Regional District realizes that the public possesses a wealth of knowledge which can greatly assist them in providing urban services. As such, the Regional District has developed a comprehensive public consultation process to keep the public informed and provide ample opportunity for input. As part of the consultation process, the public is provided with the following information:

• information regarding planning issues such as policies, strategies, plans, and studies;
• rationale for setting priorities for service areas;
• information about the proposed service area;
• historical information about the particular service;
• basis of cost estimates;
• options for funding of services;
• options for payment; and
• process for getting service.

In addition to the information provided above, the public is given the opportunity for input, in the following formats:

• regular general meetings to discuss servicing policies, strategies, plans, and studies;
• public meetings to discuss conceptual, preliminary, and detailed design;
• circulation of hand delivered or mailed notices;
• circulation of questionnaires requesting information;
• circulation of petitions to determine the level of support;
• circulation of newsletters and flyers,
• additional information can be obtained at the Regional District office or on the Regional District website.

Where the proposed project is small, some of the information may not be relevant and more than one meeting may not be required.

Public Consultation Policy

• to provide early opportunities for public consultation on every project;
• to coordinate regular general meetings to discuss planning issues such as policies, strategies, plans, and studies;
• to provide the public with an opportunity for input at regular intervals throughout every urban services project; and
• to promote public awareness through notices, newsletters, flyers, education, public meetings, and the Regional District website.

 III.  PLANNING <top>

Comprehensive planning is required before any other steps in the servicing process can proceed. For servicing initiatives, planning at the very early stages provides the cornerstone of the Capital Works Servicing Process and ensures servicing will be provided in a fair and equitable manner. It also provides the public with the opportunity to be involved in setting the direction of development and servicing in the Regional District. Some of the documents which provide the framework for establishing servicing policies and strategies are:

• Growth Management Strategy;
• Official Community Plans; and
• Zoning Bylaw.

Engineering Department Documents;

• Liquid Waste Management Plan;
• Drainage Plans;
• Sewer Treatment Plant, Trunk Main, and Collection System Studies; and
• Subdivision and Development Servicing Bylaw.

It is imperative that these documents be reviewed on a regular basis and amended as necessary to reflect the continuing changes taking effect in the Regional District. As mentioned in the Public Consultation section, the Regional District must continue to coordinate annual general meetings to discuss planning issues such as policies, strategies, plans, and studies.

Planning Policy

The Regional District shall continue to review, on a regular basis, and amend, as necessary, any documents which provide the framework for establishing servicing policies and strategies.

Priorities are based on a differing set of criteria for the various types of services. The priority for street lighting, drainage, curb and gutter, sidewalks, water systems, and underground wiring could depend on a combination on any one of the following items

• capital cost;
• public requests,
• aesthetic purposes;
• public safety,
• functional need;
• environmental concerns; and
• health concerns.

Most of these services are provided during the subdivision and development process. The Regional District is starting to get requests from area residents to provide the above services in existing areas. These requests are usually handled in the chronological order which they were received and are not necessarily subject to any set priorities. These services are more a function of cost to the individual taxpayer and public support.

The provision of sanitary sewer is a far more complex process and requires the setting of priorities. The current Liquid Waste Management Plan (LWMP) established specific priority areas as Group One, Two, or Three with Group One areas being the highest priority. These areas were identified in the LWMP which led to expectations from residents which could not be fulfilled by the Regional District. As an example, Casa Loma, which is one of the highest priorities, can not be serviced until trunk mains are extended into the Casa Loma area which would then make servicing more economically viable.

The recent stakeholder and public meetings regarding the update to the LWMP determined that sewer should be provided by priority based on consideration being given to a specific list of items. It was also recognized that over time priorities may change as more information becomes available and recommended that priorities should be reviewed and adjusted yearly. By not establishing specific priority areas in the updated LWMP the Regional District can:

• avoid creating unrealistic servicing expectations; and
• amend priorities as circumstances change.

As a result of the LWMP update process it was identified that the following items must be considered when setting priorities for providing sewer service

• environmental concerns;
• health concerns;
• septic system failure rates;
• proximity to water courses and Okanagan Lake;
• ground water levels;
• geotechnical concerns;
• public concerns, expectations, and desire to proceed with sewer;
• financial impact on the residents; and
• feasibility of connecting the service area to the sewer system.

The Regional District shall­

• continue to monitor the need to establish a process for setting priorities when providing street lighting, drainage, curb and gutter, sidewalks, water systems, and underground wiring

• consider the following items when establishing priorities for sewer.

• environmental concerns;

• health concerns;

• septic system failure rates;

• proximity to water courses and Okanagan Lake;

• ground water levels;

• geotechnical concerns;

• public concerns, expectations, and desire to proceed with sewer;

• financial impact on the residents; and

• feasibility of connecting the service area to the sewer system.

• conduct a geotechnical assessment on all areas where sewer is proposed and which are being considered for Provincial or Federal funding assistance.

 V.  SERVICE AREA BOUNDARIES <top>

Service area boundaries are established to define the parcels which will benefit from, and be required to contribute towards the costs of providing, a particular urban service. There are several items the Regional District must consider before establishing the boundary. They are as follows;

• impact on neighbouring properties;
• manageable size of area; and
• equalizing costs over the larger benefiting area.

The Regional District must be careful not to react too quickly to the first request for services in any given area. Proper planning, and consideration of neighbouring areas, is required to ensure that the interests of all residents is protected. Often there may be a local benefit that should be distributed over a larger area. Without planning and consideration, the neighbouring areas may miss out on the opportunity to receive a portion of an available benefit. Some of the benefits which should be distributed to the largest area possible are:

• cost reductions resulting from existing services funded by other residents;
• funding from the Provincial or Federal Governments;
• cash contributions or services provided by MOTH, other agencies, or developers.

Though it is understandable that residents wish to minimize their individual costs, the Regional District must consider the larger picture and determine how to fairly balance the costs and distribute any benefit, which may reduce the costs, to the larger area. This can be accomplished by identifying larger service areas for conceptual design and then identifying smaller manageable service areas for preliminary and detailed design. Though this process may delay initial servicing it will reduce administrative overhead, distribute prohibitive site specific costs over a larger area, assist in ensuring that costs for servicing the larger area is as similar as possible throughout the entire area, and provide equitable treatment to area residents.

Service Area Boundary Policy

District shall:

• consider conceptual design over a larger area to reduce administrative overhead, distribute prohibitive site specific costs over a larger area, assist in ensuring that costs for servicing the larger area is as similar as possible throughout the entire area, and provide equitable treatment to area residents; and
• avoid servicing small local areas until the conceptual design has been completed.

 VI.  DESIGN <top>

• Conceptual Design
• Preliminary Design
• Detailed Design

Conceptual Design

Conceptual Design looks outside the immediate area to determine what is the most efficient method of providing urban services to a more comprehensive area. Conceptual Design identifies;

• obstacles;
• funding options;
• schematic locations of services;
• rough cost estimates; and
• smaller more manageable areas, within the comprehensive area, which can be considered for Preliminary and Detailed Design.

Once Conceptual Design has been completed, each of the smaller areas can be designed and constructed independent of each other.

Preliminary Design

Preliminary Design is the second stage of the design sequence and has the greatest impact on the overall cost of a project. Thorough site investigation and time spent at the Preliminary Design stage can reduce the overall project costs significantly. It provides the consultant and the Regional District with the opportunity to establish the parameters by which Detailed Design will take place. Some items identified or included at the Preliminary Design stage are;

• preparation of base mapping and aerial photography;
• project obstacles;
• location of servicing;
• type of construction (i.e. rollover curb or barrier curb, full overlay or patching);
• statutory right of way requirements;
• cost comparisons of the various options.

It is during the Preliminary Design stage that the process appears to bog down. Most residents do not understand the amount of effort placed on Preliminary Design to reduce project costs and ensure project efficiency. In particular, though we have a successful rate of obtaining rights of way at minimal cost, the negotiation process can sometimes delay a project for up to a year or more. Without rights of way Preliminary Design is still a lengthy process. Any attempt to cut corners or fast track Preliminary Design will result in increased costs to the project.

Detailed Design

Detailed Design is the final stage of the design process. It can not commence until Preliminary Design has been completed and until all the rights of way, or at least the critical rights or way, have been obtained. All information up to this point has been conceptual in nature. The Detailed Design stage consolidates the information into a complete design package, it provides the public with an accurate cost estimate, and it provides all the information required to take a project to tender. The Detailed Design package includes the following:

• design drawings;
• schedule of quantities for the various components of the project;
• tender documents;
• contract documents;
• accurate cost estimate based on design drawings, tender documents, and historical unit prices;

Tendering of a project is usually delayed until public support is confirmed. In some cases tendering takes place with a long award date so public support can be confirmed.

Past experience has shown that cost estimates based on Conceptual or Preliminary Design are often a rough guess at best. The only way to establish an accurate cost estimate is to complete the Detailed Design. During the last two years the Regional District completed the Conceptual, Preliminary, and Detailed Design on most projects before establishing the costs and surveying the residents for support. This has been a very successful process as it has been found that the projects are now being completed at or under budget. There is no risk in completing the design before committing to construction as the Detailed Design package can be held in abeyance until public support is obtained or the Board decides to proceed. The project can then proceed with little notice and minor changes to the documents.

Design Policy 

The Regional District shall, upon request of the public and the support of the Regional Board;

• complete the Conceptual, Preliminary, and Detailed Design for a proposed project;
• prepare tender documents; and
• establish an accurate cost estimate,

 VII.  PROJECT FUNDING <top>

There are four questions which should be answered before establishing how a particular project will be funded. They are as follows:

• What portions of the project, if any, should be paid for by the community as a whole?;
• What portion of the project should be paid for by the immediate neighbourhood?;
• How should contributions from developers or other agencies be distributed?;
• What other forms of funding assistance may be available?

Determining what portions of a project should be paid for by the community as a whole and what portion should be paid by the immediate neighbourhood is dependant on each individual project. Some basic guidelines can be established to assist the Regional District in making the decision as to which portions of a project will be paid for by the community as a whole. These guidelines are as follows:

• sidewalks identified in the Urban Trails Network Plan;
• major drainage works not associated with the installation of curb and gutter for aesthetic purposes;
• sewage treatment plant upgrades and expansions;
• sanitary sewer trunk main upgrades and extensions.

Most urban service projects are funded exclusively through taxation. The Regional District does however receive periodic financial assistance from several sources outside of taxation. This assistance can be in the following forms:

• voluntary contributions from developers;
• voluntary contributions from other agencies, 
• works and services installed, either totally or partially, at the expense of a developer;
• road upgrade assistance from the Ministry of Transportation and Highways.

The Regional District should attempt to distribute the benefit of the above assistance to as many residents as is practically possible. As an example, where a developer has extended a trunk main, the community as a whole should benefit from this cost saving and not just the property owners whose property is immediately adjacent to the trunk main.

There are currently several levels of funding assistance that are available to the Regional District. In most cases the funding is limited to certain types of projects. Funding is provided to those projects with the highest priority compared to other projects in the Province. Some of the available funding programs are:

• Okanagan Basin Water Board;
• Provincial Capital Works Program;
• Provincial and Federal Infrastructure Program.

Project Funding Policy

• identify what portion of a project benefits the community as a whole and will distribute the costs of these works and services over the community as a whole;
• distribute the benefit of any financial assistance from other sources to as many residents as practically possible;
• continue to explore opportunities for funding assistance and to make applications where assistance is available.

 VIII.  PROJECT APPROVAL <top>

There are three methods that the Regional District can obtain the authority to proceed with an urban servicing project. They are as follows:

• by petition supported by at least 2/3 of the residents who own more than 50% of the assessed land and improvements;
• by counter petition which can be defeated if 5% of the residents oppose the proposal;
• by waiving the assent of the electorate and proceeding under the Waste Management Act.

It should be noted that the option of proceeding under the Waste Management Act is only available for sewer projects.

There is a fourth option available to Municipalities and that is proceeding under, Council Initiative. This permits a council to put forth a proposal for a project and requires that 50% of the residents must, within thirty days, sign a petition opposing the project for the proposal to be defeated. Unfortunately the Regional District does not currently have this option available to them. The Lieutenant Governor in Council may, by regulation, grant this power to the Regional District if so requested.

Project Approval Policy

• by petition whenever possible;
• by waiving the assent of the electorate in accordance with the Waste Management Act where:

• the project has been identified as a high priority in accordance with the Priority Policy; or

• the Regional Board deems the project, such as trunk main extensions or treatment plant expansions, to be in the best interests of the public.

The Regional District shall continue to investigate the need to apply for the authority to proceed under Board Initiative.

 IX.  RE-CONSIDERATION OF NON-APPROVED PROJECTS <top>

Over the past several years Regional District staff has spent considerable time and effort ensuring that proposals for servicing are thoroughly investigated and the public is presented with all the facts. Sometimes when the proposals do not get the required support a few vocal residents insist that the Regional District continue to look at the various options for servicing from different angles. Staff is then in a position where they are wasting time on proposals unlikely to succeed and are neglecting other service areas which should be given a higher priority. In addition, residents who did not support the original proposal become irritated with the constant barrage of ever changing options and have voiced their concern that the Regional District is trying to force the service upon them.

It is agreed that each proposed project should be given every opportunity to proceed through the Capital Works Servicing Process. However, it is generally felt that once the process is completed, and if the project does not gain the required support or Board approval, there should be a criteria which would have to be met before the Regional District would be willing to re‑consider any proposal to service the area.

Non-Supported Project Policy

The Regional District shall not re‑considered any project which has proceeded through the Capital Works Servicing Process and which did not gain the required support or Board approval unless:

• at least three years have elapsed since the Capital Works Servicing Process was completed; or
• a petition supported by at least two thirds of the residents is submitted to the Regional District; or
• environmental or health concerns change and require immediate attention.

 X.  CAPITAL WORK SERVICING PROCESS OUTLINE <top>

• provided with servicing in a fair and equitable manner; and
• provided with ample opportunity for input.

• a public planning process to discuss servicing policies, strategies, plans, and studies­
• the provision of information through mail outs, flyers, media, and the Regional District website;
• a comprehensive public consultation and public meeting process; and
• a detailed process for providing urban services to a particular area.

Project Startup

• identify preliminary service area
• bylaw preparation
• Board approval for design, survey, and statutory right of way acquisition

Conceptual Design

• engage consultant to carry out conceptual design for larger area
• prepare conceptual drawings for public meeting
• notification of public meeting to discuss conceptual design
• mail update of meeting to property owners

Preliminary Design

• confirm service area
• engage consultant to carry out preliminary and detailed design
• prepare schematic drawings for public meeting
• notify residents of public meeting to discuss preliminary design
• commence right of way acquisition
• mail letter to residents outlining the outcome of the public meeting

Detailed Design

• commence detailed design based on preliminary design and input from public meetings
• circulate questionnaire to residents for site specific information
• prepare draft detailed drawings and cost estimates for public meeting
• notify residents of public meeting to discuss detailed design, funding options, and project costs
• complete detailed design based on public input from public meeting
• conduct door to door survey to assess residents support for project

Tender

• project is tendered
• report to Board for consideration and approval
• construction commences

Capital Works Servicing Process Policy

 -----  end -----

 [ Westside Main Page | Westside Forums | Westside Documents  <top>]

Disclaimer:
The documents provided by The Westside are provided on an 'as is' basis. Although every effort is made to maintain exact duplication, we cannot guarantee accuracy. Use of Documents is for general information purposes only. Original documents may be updated, edited, or altered by the original author to reflect changes in the community.