REQUEST FOR DECISION
DATE: September 27, 2022 Report No. EPW-22-015
TO: Laurie Hurst, Chief Administrative Officer
FROM: Joel Clary, Director of Engineering and Public Works
SUBJECT:
Title
Various Surface Works and Underground Utility Projects Contract Award
End
RECOMMENDATION:
Recommendation
That Council award construction contracts for Lyall Street Improvements without improvements on the south side of Lyall Street east of Macaulay Street, Archie Browning Parking Lot New Sidewalk, 393 Fraser and 1193 Munro Sanitary Sewer Main Replacement, and Saxe Point Park Bathroom Sanitary Sewer Connection, as described in Staff Report EPW-22-015.
Body
RELEVANT POLICY:
Purchasing and Disposal Bylaw, 2014, No. 2845
Active Transportation Network Plan
STRATEGIC RELEVANCE:
Healthy, Livable and Diverse Community
Local Services and Infrastructure
BACKGROUND:
The Township recently posted two tenders for surface works (Attachment 1) and underground utility works (Attachment 2). Each tender included multiple projects that were identified in the 2022 to 2026 Financial Plan. Background information is provided below on each project included in the two tenders.
Project 1 - Constance Avenue New Sidewalk
The Constance Avenue sidewalk project on the east side of Constance Avenue south of Lyall Street consists of the following improvements:
- Replacing an existing asphalt sidewalk with a 1.8m wide concrete sidewalk from Lyall Street south to 457 Constance Avenue;
- Constructing a new sidewalk between 457 Constance Avenue and the mid-block path that connects to Admirals Road south of 431 Constance Avenue; and
- Mid-block pathway repairs to make it more accessible.
These improvements were identified in the Township’s Sidewalk Master Plan as a priority. In 2020 Council approved funding for these projects through the Community Works Fund. A consultant completed the detailed design in 2021 and 2022. The design provides a continuous sidewalk on the east side of Constance Avenue from Lyall Street to the mid-block path that connects to Admirals Road. The design improves the grade of the path entrance from over 18% to 9.75%.
Residents of Constance were engaged on this project on two occasions. On February 24, 2021, staff delivered the first letter to 52 properties on Constance Avenue, south of Lyall Street, to inform them of the project and give them an opportunity to provide feedback. During the feedback period, we heard from eleven residents. Three residents stated their support for the project and three residents stated they do not support the project. Six residents voiced concerns regarding a loss of parking created by the project.
A follow up letter was sent to residents on Constance Avenue on April 1, 2021 to answer questions and concerns identified after the first letter. Staff received feedback from six residents. Two residents continued to state that they do not support the project and two residents were still concerned about parking.
Project 2 - Lyall Street Improvements
In 2018 the Township completed engagement on the Lyall Street corridor seeking input on improving the corridor for all modes of transportation. Further details can be found in reports EPW-19-003 and EPW-19-019. As described in these reports, the Township received $950,000 from the CRD for improvements on Lyall Street as part of the Host Community Agreement for the Waste Water Treatment Plant project (WWTP). The outcome of these reports was to complete the Active Transportation Network Plan (ATNP) before significant changes to Lyall Street could be considered and to utilize the $950,000 funding from the CRD for initial work to address some of the concerns raised during the corridor engagement.
In 2021, as part of the ATNP engagement, the public were asked to prioritize bike improvements on an east-west corridor for either Esquimalt Road, Lyall Street, or a combination of both. Esquimalt Road was chosen as the preferred route. Lyall Street is identified as a bike route in the ultimate cycling network, but not as a priority over the first five years. The ATNP recommends revisiting priorities at least every five years.
The CRD funding is specific to Lyall Street from Lampson Street to the east and connecting routes used during the construction of the WWTP. To address the concerns identified in the public engagement using the CRD funding, staff identified a scope of work that was approved by the CRD for traffic calming and pedestrian improvements. In 2021, staff hired a consultant to review the identified improvements, make recommendations on the improvements, and complete detailed design. Based on this, the consultant completed detailed design for a tender package for the following improvements:
1. Curb extensions to shorten pedestrian crossing distances and for speed control measures at:
• Lyall Street and Lampson Street intersection
• Lyall Street and Paradise Street, and Lyall Street and Gault Crescent Intersection
• Lyall Street and Gore Street, and Lyall Street and Peters Street intersection
2. Pedestrian controlled Rectangular Rapid Flashing Beacon (RRFB) crosswalks at:
• Lampson Street and Wychbury Avenue intersection
• Mid-block on Lyall Street between Lampson Street and Macaulay Street
• Lyall Street and Paradise Street intersection
• Head Street and Paradise Street intersection
3. Remove and replace asphalt sidewalk with concrete sidewalk:
• South side of Lyall Street from Macaulay Street to Peters Street
The following scope was coordinated as part of this design and tender package, but funded separately from the CRD funding:
• Pedestrian controlled RRFB crosswalk at Head Street and Dunsmuir Road intersection ($30,000 funded from the development at 899 Esquimalt Road)
• Removal and replacement of an asphalt sidewalk with concrete sidewalk on the west side of Head Street from Wollaston Street to Dunsmuir Road ($80,000 funded through capital)
The above scope was reviewed by ICBC and up to $74,500 in funding is available in ICBC’s Road Improvement Program.
The above scope does not include improvements at the Lyall Street and Macaulay Street intersection. Further details on this intersection are found below.
Project 3 - Lockley Road and Lugrin Place Stair Removal
The Lockley Road and Lugrin Place intersection is in a residential neighborhood consisting of single-family homes. The grade change from Lockley Road traveling south on Lugrin Place is significant. Stairs exist to connect the elevated sidewalk to the road in the southeast and southwest corners of the intersection. The stairs prevent the use of the sidewalk for users of all ages and abilities. The ATNP identifies improving the overall accessibility of sidewalks throughout the Township.
Capital funding for $225,000 was approved by Council in 2022 to remove the stairs and connect the sidewalk to the road, similar to what was done at Lockley Road and Hutchinson in 2018.
Project 4 - Archie Browning Parking Lot New Sidewalk
The ATNP identified missing gaps in the sidewalk network as the top barrier for walking and rolling in Esquimalt. The ATNP asked the public to rank top sidewalks that were identified as priorities by the consultant, the sidewalk master plan, or through the first round of engagement on the ATNP. A new sidewalk in the Archie Browning Sports Centre parking lot was identified as the second highest priority. The new sidewalk is on the eastern side of Bullen Field through the Archie Browning Sports Centre parking lot, connecting Lyall Street with the existing sidewalk at the north end of the field. As part of the 2022 budget process, Council provided $200,000 in funding for this project.
Project 5 - 393 Fraser and 1193 Munro Sanitary Sewer Main Replacement
A sewer main from Munro Street connects 1193 Munro and 393 Fraser Street to the sewer network through a right-of-way between 1193 and 1195 Munro Street. This portion of sewer is a main as it connects more than one property and is in a statutory right-of-way. Due to cracked pipe sections, root intrusions, and horizontal and lateral deflections, these properties regularly see sewer backups. Council approved $60,000 in capital funding as part of the 2021 budget process to repair the damaged pipe.
In 2022, staff hired a consultant to explore repair options and to complete detailed design. The consultant reviewed several options, but due to the location and condition of the pipe, a directional drill option was selected. Directional drilling allows the contractor to install a new pipe without disturbing the surface, other than the entry/exit points.
Project 6 - Saxe Point Park Bathroom Sanitary Sewer Connection
The bathroom at Saxe Point Park utilizes a septic field to manage the sanitary waste from the bathroom facility. The septic field is at the end of its life and requires regular maintenance. The closest sanitary sewer main to the bathroom is at the Fraser Street and Munro Street intersection. To connect the bathroom to this intersection, a new sewer forcemain and pump are required. Council approved $250,000 as part of the 2021 budget process to connect the bathroom to the sewer main, replacing the septic field. In 2022, staff hired a consultant to complete the detailed design.
Project 7 - 798 Lampson Street Drain Main Replacement
Storm and sanitary mains are inspected using CCTV inspections as part of the Road Corridor Program. These inspections identify the condition of the pipes. Staff use this information to prioritize repairs using the Sanitary & Storm Replacements Program. One location identified as a high priority is a severely damaged drain main along Lampson Street between the E&N Railway crossing and 798 Lampson Street. There is up to $164,872 available in budget in the Sanitary & Storm Replacements Program for this repair, but only $150,000 is recommended to ensure funds are available if a high priority fix is identified during ongoing inspections.
Tender Summary
Surface works Projects 1 to 3 were tendered in June, but no bids were received. These projects, along with Project 4, were retendered and closed on September 14, 2022. The following is a summary of the one bid that was received:
Bidder Total Bid Amount (excludes GST)
G&E Contracting LP $2,237,225
Underground utility Projects 5 to 7 were tendered together and closed on September 15, 2022. The following is a summary of the two bids received:
Bidder Total Bid Amount (excludes GST)
Caribou Mountain Construction $1,954,782.67
PW Trenchless $716,625.01
Due to the significant cost difference between the two bids on Projects 5 to 7, only the low bid from PW Trenchless will be considered for the remainder of this report.
Below is a breakdown by project of the budget compared to the total costs. All costs including consultant fees, construction bid amounts, and a 10% contingency are shown to accurately reflect the expected costs. A detailed breakdown of budget and costs is included in Attachment 3.
Project # Funding Source Budget Total Project Costs
Project 1 Community Works $374,745 $590,700
Project 2 Multiple $1,120,182 $1,338,728
Project 3 Community Works $225,000 $305,250
Project 4 Community Works $200,000 $297,770
Project 5 Community Works $58,666 $247,770
Project 6 Community Works $246,467 $374,570
Project 7 Infrastructure Reserve $150,000 $249,437
These tenders were based on MMCD Contracts, which permit the Township to change the quantities if the quantity change is 15% or less. Any change beyond 15% requires approval from the contractor and are subject to unit rate changes.
Project 8 - Lyall Street and Macaulay Intersection - Optional
Concerns regarding the safety of the Lyall Street and Macaulay Street intersection (Intersection) were brought to the August 22, 2022 Committee of the Whole meeting. Council directed staff to prepare a report providing information on the Intersection and improvements expected in the surrounding area. This information is included in this report as some of the improvements are in the area of the Intersection and within Project 2 construction limits.
Although Project 2 does not identify improvements at the Intersection, it does provide improvements in the area that will increase safety. Curb extensions identified at three locations along the corridor provide traffic calming. RRFB crosswalks at the Lyall Street and Paradise Street intersection, and at a mid-block crosswalk between Lampson Street and Macaulay Street provide improved crosswalks east and west of the Intersection.
The Intersection is a 4-way stop intersection of Lyall Street, a Collector Road, and Macaulay Street, a Local Road. Curb extensions were prioritized over the Intersection at Lyall Street and Lampson where a Collector Road and Major Road intersect, and at locations where there’s no stop control. RRFB crosswalks were not identified at the Intersection as it is not standard practice to install flashing beacons at a crosswalk with a stop sign. RRFBs are not to be installed at stop control intersection as stop control designation is a higher right of way control than a yield of a RRFB crosswalk.
In addition to the improvements identified in Project 2 there are other improvements completed or planned near the Intersection. The Township recently installed vertical playground zone signs along Lyall Street through ICBC funding. Red and white reflective tape was added to the stop sign poles at the Intersection to draw awareness to the stop signs. Further improvements on Lampson Street are expected in the coming weeks as part of the Vision Zero grant the Township was awarded. These improvements are for speed display boards and school zone pavement markings on Lampson Street on each side of the intersection with Wychbury Street. Later in 2022, staff will bring a report to Council regarding options for lowering speed limits in the municipality as identified in the ATNP. These improvements align with the Ready Step Roll report recently completed by the CRD for Macaulay Elementary.
A review of this intersection has been completed by VicPD, Engineering staff, and the consultant responsible for Project 2. A safety issue was not identified at this intersection; however, feedback from residents indicates a compliance issue where vehicles do not fully stop at the stop signs. Staff have worked with the consultant to provide the below options for improvements to the Intersection from least to most expensive.
Option # Description Cost
1 Repaint the crosswalk lines in 2023 $1,000 (Operating Budget)
2 Playground zone pavement markings $7,000 (2 locations)
3 Stop sign flashing lights $12,000 (4 locations)
4 Add speed display boards $14,000 (2 locations)
5 Speed control pilot $15,000 (2 locations)
6 Permanent curb extensions $80,000 (2 locations)
7 Raised intersection $200,000 (1 location)
Repainting the crosswalk lines is planned for 2023 through the Operating Budget. Options 2 to 7 would be funded through the Community Works Fund or CRD funding, if other scope included in the tender is removed. These options could either be added to the tender as the scope is similar in nature and in the same location as Project 2 or completed by Public Works crews.
The speed control pilot in Option 5 would see temporary curbside concrete medians with a stop sign (see example in Attachment 4) and three bollards along the centreline added to the Lyall Street approaches. Other municipalities have been using this approach as a quick method of narrowing the road to provide traffic calming.
ISSUES:
1. Rationale for Selected Option
There is not sufficient budget allocated to fund all the projects and scope in the two tenders. To further analyze the options, a review of projects that use the same funding source will be grouped together.
Infrastructure Reserve
Only Project 7 is funded from the Infrastructure Reserve. The total costs of almost $250,000 is $100,000 over the budget of $150,000. Funds are available in the Infrastructure Reserve to increase the budget and fund the tendered project; however, this will impact the Township’s ability to fund planned I&I work in 2023. Staff recommend deferring this project to 2023 when it could be completed by Public Works crews during the summer to avoid bypass pumping or included in anticipated bike lane improvements on Lampson Street. Not completing this work before the rainy months increases the risk of further damage to an already damaged pipe. This risk would be offset by additional monitoring by Public Works crews.
Community Works Fund
Projects 1 to 6, and 8, would rely on the Community Works Fund to fund any costs that exceed the budget. This includes any costs that exceed the CRD funding on Lyall Street. As all of these projects are within the same fund, budget from one project can be reallocated to a different project. The combined budgets of Projects 1 to 6 is $2,225,060 compared to the total costs of $3,185,241 (includes adjustments for General Requirements from Project 7), leaving a budget shortfall of $960,181 (not including Project 8.) To address this shortfall, the following options exist:
1. Increase Funding
2. Defer Projects
3. Remove Scope
For Option 1 above, any increase in funding would be funded from the Community Works Fund. This option would impact the Township’s funding identified for bike lane construction on Lampson Street in 2023. For Option 2 above, any deferred projects could be included as requests in the 2023 or future year budget process. For Option 3 above, removal of scope from a tendered project would be subject to approval by the contractor, if the quantity change is more that 15%. A combination of these options could be utilized to optimize funding.
Staff recommend deferring Projects 1 and 3, and removing scope from Project 2. Projects 1 and 3 address needs identified in the ATNP, but these specific locations were not identified by the public as the top priorities. Staff could shelve these designs for use in a future year, when they become priorities through the ATNP refresh every five years or as directed by Council. Removing Projects 1 and 3 provides $599,745 in funding to reallocate to other projects. The total costs of Projects 2 (full scope), 4, 5 and 6 would be $2,313,666 (includes 75% of the consultant fees from Project 1 and 3) compared to a budget of $2,225,060 (utilizing funding from Projects 1 and 3).
Staff recommend removing scope from Project 2 to work within the available budget. To do this, staff recommend removing the improvements to the south side of Lyall Street from Macaulay Street to the east. This removes the following scope:
• Asphalt sidewalk replacement on the side of Lyall Street from Macaulay Street to Peters Street
• Curb extension on the south side of Lyall Street at the Lyall Street and Paradise Street, and Lyall Street and Gault Crescent Intersection (north side at this location to remain)
• Curb extension on the south side of Lyall Street at the Lyall Street and Gore Street, and Lyall Street and Peters Street intersection (north side at this location to remain)
Removal of the above scope would save $141,680. Completing a descoped Project 2, and Projects 4, 5 and 6, the total cost would be $2,171,986 (includes 75% of the consultant fees from Project 1 and 3) compared to a budget of $2,225,060 (utilizing funding from Projects 1 and 3).
The above recommendation does not include improvements at the Lyall Street and Macaulay Street intersection. Should Council consider changes at the Intersection, staff recommend the speed control pilot option. Stop sign flashing lights do not appear to meet Transportation Association of Canada (TAC) criteria at this location. TAC only recommends these lights be installed at locations of limited visibility. Pavement markings and speed display boards could be considered on a larger scale throughout the municipality as part of the 2023 budget process.
2. Organizational Implications
These contracts will continue to be managed by Engineering & Public Works staff, along with consultants. Management of these contracts can be accommodated within each departments work plans.
3. Financial Implications
Financial implications are described in Background and Rationale for Selected Option sections of this report.
4. Sustainability & Environmental Implications
Projects 1 to 4 align with the vision and goals of the ATNP by improving active transportation infrastructure. Active transportation plays a significant role in mitigating climate change as the transportation sector accounts for 33% of the community greenhouse gas (GHG) emissions.
Not addressing Projects 5 and 6, increases the risk of sewage entering the environment. With more frequent and higher intensity storms expected in the future due to climate change, Project 7 is at risk of causing more severe flooding, should the pipe fail in the future.
5. Communication & Engagement
Any contract award, scope change or project deferral will be communicated to the bidders for their approval, if necessary. Affected residents will be notified of impacts during construction for any awarded contract. In addition, staff will communicate with residents that have been engaged along Constance Avenue for Project 1, and at 1193 Munro and 393 Fraser for Project 5 should there be a change to these projects. Any change in scope to the Lyall Street Improvements for Project 2 would be communicated to the CRD and Macaulay Elementary. An update will be provided to the residents that have provided feedback on the Lyall Street and Macaulay Street intersection, following Council’s decision on Project 8.
ALTERNATIVES:
1. That Council award construction contracts for Lyall Street Improvements without improvements on the south side of Lyall Street east of Macaulay Street, Archie Browning Parking Lot New Sidewalk, 393 Fraser and 1193 Munro Sanitary Sewer Main Replacement, and Saxe Point Park Bathroom Sanitary Sewer Connection, as described in Staff Report EPW-22-015.
2. That Council request additional information from staff.
3. That Council provide alternate direction to staff.