EX14.3 STAFF REPORT ACTION REQUIRED. McNicoll Bus Garage Costing Review SUMMARY. Date: April 5, Executive Committee. To: City Manager.
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1 EX14.3 STAFF REPORT ACTION REQUIRED McNicoll Bus Garage Costing Review Date: April 5, 2016 To: From: Executive Committee City Manager Wards: Ward 39 Reference Number: SUMMARY The Toronto Transit Commission (TTC) is proposing to construct the McNicoll Bus Garage ("MBG") to maintain and store 250 buses (40ft equivalents). In March 2015, the MBG was approved by City Council in the Capital Budget and Plan. In July 2015, the TTC received the required Environmental Assessment (EA) approval from the Ministry of Environment and Climate Change for the project to proceed. On September 21, 2015 Executive Committee requested the City Manager, in consultation with the Chief Executive Officer, TTC, to report to Executive Committee on a review of the costing for the MBG in comparison to similar garages in other jurisdictions. This report responds to Executive Committee's request. Third party consultant services were retained from KPMG to perform the comparative cost analysis. The York Region Operations, Maintenance & Storage Facility ("OMSF") was completed in 2015, and shares similar features and capacity to the MBG. For this reason the OMSF has been selected for comparison purposes over other bus garages considered. The consultant identified the following key differences between the cost estimate prepared by the TTC for the MBG and the actual cost of the OMSF: MBG construction costs are currently estimated to be approximately 18 percent higher than the actual construction cost of the OMSF; and MBG has assigned a higher contingency (26% of construction cost) in comparison to the OMSF contingency allowance of approximately 13% of construction cost. The actual contingency dollars spent during construction of the OMSF is 5.6% of construction cost. These two cost categories form the cost differential between the MBG and the OMSF. Specific cost estimates for MBG and actual dollars spent on the OMSF, are not included Staff report for action on McNicoll Bus Garage 1
2 in the report due to the commercial sensitivity of providing detailed cost breakdowns. The City and KPMG were required to sign non-disclosure agreements with York Region to obtain information to complete the analysis. The final cost for the MBG will be determined through a competitive procurement process. Five proponents applied through the pre-qualification process for the Design- Build (DB) contract of the MBG. The TTC has shortlisted three DB Proponents for the Request for Proposals (RFP), which was issued on February 29, The TTC has been consulted on the findings of this review, and has taken action to address the recommendations of this report. This report recommends the City Manager work with the CEO, TTC in the implementation of measures initiated by the TTC to ensure value for money and address opportunities for cost reduction for the MBG project. This includes requesting the TTC Board to adjust the MBG project budget to reflect the total project costs as awarded through the 2017 budget process, once procurement has been completed. RECOMMENDATIONS The City Manager recommends, 1. Executive Committee request the City Manager to work with the Chief Executive Officer, Toronto Transit Commission, in the CEO's implementation of the following measures currently underway: a. Review and confirm the RFP documents for the McNicoll Bus Garage include performance specifications and opportunities for value engineering processes to reduce costs. b. Inclusion of City of Toronto staff representation on the McNicoll Bus Garage bid selection committee. c. Reporting to the TTC Board on costs, schedule, scope and any project change requests through the monthly CEO report. d. Requesting the TTC Board, as part of the 2017 budget process, to adjust the McNicoll Bus Garage project budget to reflect total project costs as awarded. Financial Impact This report outlines that the TTC will report on a revised project budget for the MBG in the 2017 budget process, once the procurement process is complete. The Deputy City Manager & Chief Financial Officer has reviewed this report and agrees with the financial impact information. Staff report for action on McNicoll Bus Garage 2
3 DECISION HISTORY On August 24, 2014, City Council approved the MBG Draft Environmental Project and authorized submission of the Environmental Project Report (EPR) to the Ministry of Environment. City Council also directed that additional items be included in the McNicoll Bus Garage design. The Ministry of Environment and Climate Change approved the Environmental Assessment for the MBG in July On March 10-11, 2015, City Council approved the TTC's 2015 Recommended Capital Budget, which includes $181 million for the MBG project. On September 21, 2015, Executive Committee requested the City Manager, in consultation with the Chief Executive Officer, TTC, to report to Executive Committee on a complete financial analysis and cost breakdown of the expenditures for the proposed $181 million TTC MBG approved by City Council, and to conduct an examination of project delivery options, and the costs of similar garages in other jurisdictions. This report responds to Executive Committee's request. ISSUE BACKGROUND The TTC has seven existing bus garages with a total capacity of approximately 1,630 buses. The existing bus fleet, at approximately 1,830 buses, exceeds this capacity. Additional buses will be received from 2016 to 2018 to meet projected transit ridership growth and to reverse service cuts made in recent years. These additional (250) buses will increase the TTC bus garage capacity shortfall to 450 spaces. The TTC is building a transit garage to maintain 250 buses at the northeast corner of Kennedy Road and McNicoll Avenue, in Scarborough, to address some of this bus capacity shortfall. The MBG will be undertaken using a Design-Build (DB) project delivery approach. Contract documentation was developed and a formal prequalification process was completed in the summer of Three DB proponents will participate in a RFP process whereby proposals from each of the bidders will be received and evaluated, following which a preferred proponent will be selected. Construction is expected to commence mid with anticipated completion in the second quarter of Staff report for action on McNicoll Bus Garage 3
4 COMMENTS Comparative Cost Review As requested by Executive Committee in September 2015, a cost comparison of similar bus garages in other jurisdictions was conducted. The Town of Oakville's Transit Facility was mentioned in the Member Motion from which this direction arises. City staff have determined that the MBG is significantly different from the Oakville Transit Facility. The proposed MBG includes several operational features and amenities that distinguish it from the Town of Oakville's Transit Facility, including: Greater bus capacity (250 buses versus 175 buses) More building area (MBG's 30,000 m 2 versus 23,500 m 2 ) Ability to accommodate 60 foot buses Body Shop, Paint Shop, Degrease Room Roll-up Overhead Speed Doors Greater number and larger capacity of Bus Hoists Higher capacity Bus vacuum system Elevator for access to second floor Building Automation System Uninterrupted Power Supply CCTV System outside of the building Solar Wall and 50% of roof vegetated "Green Roof" for compliance with the Toronto Green Standard. These significant differences in size and scope of the Oakville Transit Facility were reflected in the significantly lower capital cost of $45 million. For these reasons, City staff deemed this facility an unsuitable comparator for the purpose of this review. Additionally, the Oakville facility was delivered utilizing the Design-Bid-Build (DBB) project delivery method. City staff identified the York Region OMSF as a more suitable comparator for this review. The OMSF opened in 2015 and has capacity for a similar range of buses. The facility also has many of the same features and amenities as the MBG and was delivered through a Design-Build (DB) project delivery approach for a total project cost similar to the estimated capital cost of the proposed MBG. For these reasons, the OMSF was used as the benchmark, to compare actual construction costs with the estimated MBG costs. Details of the York Region OMSF, including detailed costing information are not included in this report due to non-disclosure agreements between the City and York Region. The City retained the services of KPMG to undertake a third party review of the cost estimates developed for the MBG, using the OMSF as the benchmark for comparison. The Consultant Scope of Work included a comparative review of: Staff report for action on McNicoll Bus Garage 4
5 construction cost; project management and contract administrative fees; engineering fees (internal and external); third party fees (e.g. geotechnical work etc); ancillary technical support fees; any other costs charged to program or project management; and contingency and/or contract change allowances. KPMG's analysis identified two key areas where the cost difference between the MBG estimate and the OMSF actual cost vary significantly construction cost and contingency allowances. Construction Cost The estimated construction cost for the MBG is approximately 18 percent higher than the completed actual construction cost of the OMSF. The MBG and OMSF appear to have some differences in design features, however the cost impacts of these factors appear to be closely similar and therefore can be negated for the purposes of comparison. The York Region OMSF project team were able to reduce the costs of the facility during construction by up to approximately 20 percent through a value engineering process. This was accomplished through the contractor and owner being incentivised through the project agreement to share cost savings. The agreement aligned the goals of the two parties to identify areas where they could reduce construction costs to their mutual benefit. KPMG identified value engineering as a method that may generate potential cost savings for the MBG. The TTC has indicated they have included a similar value engineering process, using an incentivized project agreement to share cost savings, in the MBG RFP. Contingency KPMG's analysis indicates that estimated contingencies for the MBG is 26% of the total construction cost, while the total budgeted contingency for the OMSF was approximately 13% of the total construction cost. The actual contingency spent was under 6% of the total OMSF construction cost. Given that the construction cost of MBG is higher than the OMSF as noted above, the contingency is a substantial line item in the cost breakdown for the MBG. Industry best practice guidelines, provided by the Association for the Advancement of Cost Engineering (AACE) suggest that a project at the MBG's stage of design definition should have a contingency allowance between 10 to 30 percent of construction cost. The TTC estimate for contingency is close to the high end of the AACE range. The TTC has identified the following project risks in the development of the contingency for the MBG project: unknown subsurface conditions Staff report for action on McNicoll Bus Garage 5
6 the change in the Canadian/American exchange rate which significantly increases equipment costs; Toronto Regional Conservation Authority requirements, as the site borders both a regulated waterway and a wetland. Requirements will be provided when the proponents design is complete; site plan requirements, which will be provided by the City as part of the Site Plan approval application, once the proponents design is complete; third party issues for the local area, including adjacent residential uses and place of worship (e.g noise monitoring) Cost of potential buy-back of easement on employee parking lot parcel The budget allocation for contingency should reflect potential project risk. The City Manager in consultation with the CEO, TTC is currently undertaking a review of TTC Capital Program Delivery and project management practices. This will include a review of TTC practices in developing project contingencies. The findings from the TTC Capital Program Delivery Review will be reported to the TTC Board. Design Build Project Delivery Method KPMG was also requested to provide commentary on TTC s choice of project delivery approach and opportunities for reducing overall project costs. The TTC intends to utilize the same project delivery method (Design-Build) for the MBG as used by York Region for the OMSF. The Design-Build (DB) model awards design and construction under a single contract. KPMG notes that the DB project delivery method has advantages that the TTC can leverage in the MBG project. A key advantage to the DB approach is the transfer of appropriate risk to the DB Team. Since the general contractor is typically the lead in this delivery method, the majority of the cost, schedule and quality risks related to construction are transferred to the contractor. The construction cost risk is transferred to the DB team, as they will typically have provided a fixed price to design and construct the project. It is typically more difficult and costly to implement a change order under a DB because of the way the contract is structured. This results in little incentive for the DB team to pursue creative design and/or construction solutions that could increase efficiencies during the operations phase. KPMG identified that the success of the DB approach lies in the quality of the performance specifications and ensuring they capture all the owner's requirements without prescribing the means to achieve them. KPMG recommends the TTC should consider developing performance specifications that allow for the appropriate allocation of risk between the TTC and the DB team. Structuring the assignment to include performance specifications and value engineering processes will ensure that high quality submissions are received, and may result in a reduction in construction capital cost, as previously noted. Staff report for action on McNicoll Bus Garage 6
7 TTC has included performance specifications and value engineering processes in the current RFP. This report requests the City Manager to work with the CEO, TTC to review and confirm the RFP documents address the identified opportunities to reduce cost. This report also recommends that City staff be included on the project bid selection committee to ensure that the bid selected provides the best value for the City and TTC. CONTACT Peter Notaro Executive Director, Strategic & Corporate Policy City Manager's Office Tel: SIGNATURE Peter Wallace, City Manager Staff report for action on McNicoll Bus Garage 7
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