That staff be authorized to proceed with the implementation of the project as outlined in the Master Plan.

Transcription

1 REPORT TO: Chair and Members of Committee of the Whole SUBJECT: Niagara Regional Police Service Long Term Accommodation Master Plan Report RECOMMENDATION That this committee recommends to Regional Council: That the Master Plan Report for the Niagara Regional Police Service Long Term Accommodation Strategy, prepared by McClaren, Wilson & Laurie Inc. in association with Rebanks, Pepper, Littlewood Architects, dated March 2011, be approved; and That staff be authorized to finalize the negotiations with Public Works Canada (acting on behalf of the Canada Border Services Agency) on the potential sharing of facilities at the site of the new NRPS headquarters and report back to Regional Council on the outcome; and That staff be authorized to proceed with the implementation of the project as outlined in the Master Plan. PURPOSE The purpose of this report is to have Regional Council approve the completed Master Plan Report for the Niagara Regional Police Service Long Term Accommodation Strategy and to seek approval to proceed with the implementation of the project as outlined in the Master Plan. BACKGROUND Minutes of Settlement between NRPS and Niagara Region were formally agreed to by Regional Council and Police Services Board in September The MOS, attached as 1

2 Appendix A, contain a number of clauses relating to the need for a Master Plan and outline the deliverables anticipated from the Plan. The deliverables include the following items: Gantt Chart development to verify work plans, costing, growth components; square footage requirements and cash flow requirements; Definition of the scope of work for each element of the Project; Identification of all resources needed to implement the Project; Determination of anticipated operational savings and efficiencies; Concept site plan and blocking and stacking plan design for each building and site; Project cost estimates; Master schedule for each element of the Project; and Management plan for implementation of the Project. The Minutes of Settlement indicate that the Region and Police Services Board will jointly and cooperatively oversee and implement a Long Term Accommodation Plan for the renewal of facilities used by NRPS. Under the direction of Regional Council and Police Services Board, staff at Niagara Regional Police and Niagara Region were directed to develop a Joint Steering Committee to oversee the development of the Master Plan, acquisition of property, and the ultimate implementation of the Master Plan to an upset limit of $83,076,100. Following the acceptance of the Minutes of Settlement, a consultant was selected for the preparation of the Master Plan. The consulting firm of McClaren, Wilson & Lawrie in association with Reebanks, Pepper, Littlewood Architects, was approved through report CAO , on December 17, A major component of the Master Plan work involved the confirmation of growth, ultimate spatial needs of NRPS and selection of a suitable property upon which to construct the new headquarters facility. Reports CAO , CAO and CSD outlined the approvals given by Council for negotiations with selected property owners and the ultimate purchase of property at the Stamford/Portage/Valley Way location in Niagara Falls. FINANCIAL IMPLICATIONS At the September 23, 2010 meeting of Regional Council it was confirmed that the project upset limit was $83,076,100. Amendments were made to the proposal which included the continued use of the ESU/SEU facility at 2 Cushman Road in St. Catharines in order to stay within this limit. The Master Plan as presented demonstrates that the proposed development for the new NRPS Headquarters in Niagara Falls and new District facility in St. Catharines can be delivered within the financial limit. Funding in the gross amount of $83,076,100 has been approved for this project under project ZPO0509. Of this amount $13,376,000 has yet to be initiated. Expenditures to date in this account for the Long Term Accommodation project are $528,131. Funding for 2

3 the redevelopment of the Grimsby and Fort Erie facilities was previously approved at $7,000,000 for both and is not included in the $83,076,100 for the headquarters redevelopment. The following is an estimate of incremental project costs over a 20 and 30 year period. Operating and maintenance and life cycle costs have been reviewed and estimated, however are not stated here as these costs are ongoing with the existing facilities. It is anticipated that a modest annual savings would be achieved with the operation and maintenance costs due to the reduction in the number of facilities and more efficient new buildings. Likewise the life cycle costs for the major building components are anticipated to be less than those associated with the continued use of the existing facilities. Capital Costs Site acquisition, demolition and cleanup $5,400,000 Construction cost $63,970,000 Soft costs (contingency, design, furnishings, etc.) $13,706,000 Initial construction cost total $83,076, Year Period 30 Year Period Capital Cost 83,076,000 83,076,000 Interest Costs (5%) 49,300,000 (5.5%) 87,663,000 Operational Savings (51,000,000) (76,500,000) Net Project Cost 81,376,000 94,239,000 The proposed development in Niagara Falls and St. Catharines will result in an annual repayment schedule in the order of $6,660,000 for the Region over a 20 year period or $5,700,000 for a 30 year period depending on the financing term. With the proposed development, NRPS anticipates, as outlined in CSD , that they will achieve savings of approximately $2,550,000 annually due to various operational efficiencies associated with a centralized facility. These figures are expressed in the above table in nominal dollars. The inclusion of this project in the Region s capital program will provide challenges in meeting taxpayer affordability targets which will have to be addressed in subsequent budget reports. Region/ NRP Study Activity Costs to Date During the review of the proposed project in 2010 Regional Council requested a summary of costs for consultants, legal, and staff time spent on the project, including the Due Diligence review, preparations for OCCPS hearing, and the ultimate preparation of the Master Plan. The full summary is attached as Appendix B. The total amount spent to date on consultants and legal services by both Niagara Region and NRPS is $1,167,432. 3

4 The Council request to identify costs also included an accounting for staff time. In order to undertake the Due Diligence review requested by Council many Regional staff members were required to participate in the undertaking. The review impacted Land Use Planning, Financial Management and Planning, Properties Management and also Legal Services with staff from all of the areas contributing time to the Due Diligence effort. With the exception of Legal Services the same staff members were involved in the preparation of the Master Plan report. While the costs for external Consultants are readily available and easily summarized, staff costs are difficult to determine as all of the staff time is not tracked through timesheets and as the Police Capital project is not being charged for staff time a summary cannot be generated from that source. Regional staff resources are being used to prepare information for Regional Council which is typical and similar to other initiatives such as Inter Municipal Transit, Niagara Gateway, etc. As with these initiatives it is difficult to identify the staff costs involved. Based on an approximation of staff time committed by the Region and NRPS the staff costs would be expected to be in the range of $500,000 to $800,000. It should be noted that through the Due Diligence Review, mediation efforts and work through the Master Plan process, modifications to the Long Term Accommodations Strategy were agreed to from the original B Concept to the present plan, which resulted in a reduction in facility replacement needs with an associated cost reduction from the original estimates, however with the increased continued use of existing facilities potential NRP operational savings were reduced. REPORT The Master Plan has been prepared following extensive research into the anticipated growth of Niagara Regional Police Service and the facility requirements to address the existing and growth related needs. A copy of the executive summary of the Master Plan report is attached as Appendix C with this report. Previous reports to Regional Council and Police Services Board during the Master Plan preparation dealt with the site selection for the Headquarters facility. This final Master Plan report again details the rationale for the selected location in Niagara Falls. The preparation of the Master Plan report involved a significant increase in scope outside of the control of the consultant. The original proposal was based on the early selection of a site for the new NRP Headquarters and then having conceptual blocking and stacking plans developed for this site. In fact additional sites were reviewed at the request of the Steering Committee and also Regional Council. Conceptual blocking and stacking for a proposed facility was carried out on four sites instead of one. Cost estimates were also necessary for all of the various concepts considered. In addition, the Consultant was also required to prepare interim reports for review and consideration by Regional Council. In the original proposal four work sessions with the Steering Committee were contemplated where in fact the final number is eleven (11). Finally, In the original proposal the 4

5 anticipated time frame for the preparation for the Master Plan was seventeen (17) weeks where we are now in excess of sixty (60) weeks which is greater than three times the original length of time considered. The Master Plan report identifies how the conceptual facility plan including the new Headquarters and Niagara Falls District facility can be accommodated on the selected site in Niagara Falls including the provision of adequate parking. The report also examines the redevelopment of the Police facility in St. Catharines and recommends a new District facility located in the same general location as the existing 68 Church Street facility. Discussions have taken place with City of St. Catharines staff dealing with the potential redevelopment of the Police facility and possible redevelopment of adjacent lands within the affected block. Further discussions with City of St. Catharines staff are anticipated to finalize the details. As part of the Master Plan report preparation, an investigation into potential partner agencies was undertaken. The original long term accommodation strategy prepared by NRPS identified a potential for sharing a facility with other like agencies. The agencies identified were RCMP and Canada Border Services Agency (CBSA). A joint facility introduces potential operational efficiencies for each agency involved and would involve an overall cost savings on the project. The Minutes of Settlement identified the need to investigate and confirm the involvement of any potential partners. Discussions with RCMP identified a desire for that agency to construct a new facility in Niagara Falls. RCMP advised that they did not want to share a facility but would rather be located in a separate facility possibly on the same site as NRP. Niagara Region responded to a formal expression of interest put out by RCMP for a potential site for their facility, however the ultimate decision by RCMP was to locate elsewhere. Discussions with CBSA revealed that they were anxious to consolidate a number of facilities in Niagara to a single site and as the ultimate site selected for the NRP headquarters facility is to be located within a boundary which satisfies their needs, they have expressed an interest in sharing a location with NRP. A number of meetings have taken place between the project consultants and representatives of CBSA to identify their spatial needs and to incorporate those needs into a joint facility plan. This work has been carried out and conceptual blocking and stacking plans complete with cost estimates have been shared with Public Works Canada, representing CBSA. The inclusion of CBSA into this development may involve the purchase of additional property and the negotiation of a lease with Hydro One for the use of their corridor at the east side of the site. Further negotiation with Public Works Canada will be needed to finalize an agreement should it be decided that CBSA is to be located jointly with NRP. The Master Plan Report has concluded that facilities, to meet the existing and future needs of NRPS, can be constructed in Niagara Falls and St. Catharines within the stipulated budget cost. The report outlines a timeframe target of approximately forty two (42) months to complete the project following approval of the Master Plan and direction to implement the project by Regional Council. 5

6 With the construction of new facilities, there is obviously an impact on some of the existing Police facilities. The Master Plan Report provides a recommendation as to the disposition of these facilities. The following is a summary of these properties and anticipated outcomes: LOCATION Church Street, St. Catharines 2. 2 District 4343 Morrison Street, Niagara Falls James Street, St. Catharines DISPOSITION Existing building to be demolished. New district facility to be constructed on this site in the same block if additional adjacent redevelopment takes place in conjunction with the City of St. Catharines. Existing facility to be vacated with staff relocated to the new Niagara Falls facility. Existing facility to be used by other Regional department/agency/board or declared surplus. Existing facility to be vacated with staff relocated to the new Niagara Falls facility. Existing facility to be used by other Regional department/agency/board or declared surplus. NEXT STEPS Upon approval of the Master Plan, staff will immediately commence on the implementation of the project following the guidance of the Master Plan. The proposed activities listed below in the table bring the project to a tender award phase, Construction would follow the tender award and would continue for approx 30 months. As with the cost estimates presented in the Master Plan, the timing is based on a traditional design-bid-build basis. The timing is important as an early tender call may be very beneficial for this project, especially as there is a funding cap in place. Two activities are ongoing on this project which require reporting back to Council for further approval. These activities should not be seen as a reason for delay in the overall project. The first activity involves a review of the project delivery methods. Staff will shortly finalize an analysis on the most suitable project delivery method. Options under review include the traditional design-bid-build, construction management, and design-build-financemaintain. Discussions are ongoing with Infrastructure Ontario, construction associations, contractors, and consultants to assist in this determination. A subsequent report to Regional Council will outline the advantages/disadvantages of each method together with a preferred option. 6

7 The second activity involves the ongoing negotiation with Public Works Canada on behalf of Canada Border Services Agency (CBSA). Staff will continue these discussions to determine if an agreement can be reached on sharing a facility and also to determine the cost benefit to Niagara. If it is determined that a joint facility can work for both parties and that there is a cost benefit for Niagara, a further report seeking Regional Council s approval on this matter will be submitted. If no agreement can be reached, Council will be informed and staff will proceed with the stand-alone facility. The following is a step by step approach, initially based on the traditional design-bid build process, which can be followed to advance this project in an efficient manner: Activity Council approval needed Anticipated date Approval from Council to proceed with project X April 2011 Present preferred project delivery method to Council X May 2011 for approval Prepare terms of reference for design services May 2011 Pre-qualify design team constulants June 2011 Request proposals from design consultants July 2011 Review proposals and award assignment August 2011 Finalize agreement with CBSA (latest date not to X August 2011 interfere with process) Design consultant reviews reports and needs and Sept/ Oct/ Nov prepares preliminary drawings Preliminary drawings approved X November 2011 Prepare working drawings and specifications May 2012 Tender project X June 2012 As noted in the summary above there is sufficient time in the design consultant selection process to allow staff to complete the project delivery summary and finalize the agreement with CBSA without impacting on the overall progress of the project. Submitted by: Brian Hutchings, B.Comm, CGA Commissioner of Corporate Services Approved by: Mike Trojan Chief Administrative Officer This report was prepared by Brian Hughes, Director, Properties Management and reviewed by the members of the Niagara Region/ NRPS Long Term Accommodation Steering Committee. 7