2. supplemental report - integrated street furniture program
programme intégré de mobilier urbain – complément d’information
That Council receive this report as information.
Que le Conseil de prendre connaissance du présent rapport comme de l’information.
1. Deputy City Manager’s report, Infrastructure Services and Community Sustainability, dated 30 September 2009 (ACS2009-ICS-CSS-0036).
Comité des transports
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This report is a supplement to Report 3 of the Integrated Street Furniture Program (ISFP) entitled City of Ottawa Integrated Street Furniture Policy and Design Guidelines and Request for Proposal Strategy (ACS2009-ICS-CSS-0020), which was considered by Transportation Committee on August 26, 2009.
Following deliberations, Transportation Committee agreed to create an ISFP Sponsor Committee comprised of Councillors Bédard, Doucet, Leadman, and Wilkinson. The Sponsor Committee worked with staff to review and refine the proposed program based on the recommendations that resulted from the Transportation Committee meeting of August 26, 2009. Document 1 provides an overview of the outcome of actions taken to date with respect to each recommendation.
The purpose of this report is to provide supplemental information only in response to specific motions resulting from the August 26, 2009 Transportation Committee meeting, relating to:
ISFP Sponsor Committee
On August 26, 2009, the Transportation Committee created an ISFP Sponsor Committee comprised of Councillors Bédard, Doucet, Leadman, and Wilkinson, to act as champions to help guide the City’s street furniture program. The Committee is advisory in nature and reports to, and makes any recommendations to the Transportation Committee.
The role of the ISFP Sponsor Committee is to advise and assist staff with respect to its legislative reports (original and supplemental) on street furniture. The Sponsor Committee has met with staff on three occasions since August 26, 2009 in order to develop and support the information provided in this report.
At the August 26, 2009 Transportation Committee meeting, Motion #7 was approved to revise the ISFP timelines to allow proponents more time to prepare their bid submissions (a minimum of 6 months from the issuance of the RFP). The new timelines for the release of the RFP and rollout of the ISFP program are described in Table 1.
Given the additional time at the front end of the process, it is now projected that the rollout of street furniture will begin in September 2011, two months later than originally forecast. The current contracts, which now expire in July 2011, will need to be extended another two months in order to bridge services to September 2011.
Transportation Committee approved motion #10 to restrict advertising in the Central City Area to transit shelters and information wayfinding kiosks, but to allow for advertising flexibility in other areas. To avoid confusion with the definition of the Central Area used in the Official Plan, the ISFP will use the term “ISFP Restricted Advertising Area” to define the advertising restricted boundaries. Staff have worked with the Sponsor Committee to define the ISFP Restricted Advertising Area boundaries which is identified in Document 2.
During consultation sessions with the BIAs, many expressed a desire to restrict advertising to transit shelters and information wayfinding kiosks. To accommodate BIAs that are not in the ISFP Restricted Advertising Area, it is recommended that prior to the release of the RFP, those BIAs seeking advertising restrictions must make their requests known to staff; otherwise, their area will be in the more flexible zone, which will permit advertising on benches as well.
Proponents, through the RFP, will be asked to demonstrate how they will accommodate local business advertising in both the ISFP Advertising Restricted Area (which permits advertising only on transit shelters and information wayfinding kiosks) and the outer zone (which also permits advertising on benches).
Advertising on our City streets will now include bicycle parking, transit shelters, information wayfinding kiosks, and benches (outside of the ISFP Advertising Restricted Area), all of which will support local advertising. Currently the City allows for advertising on transit shelters, benches, litter and recycling receptacles, and bicycle parking.
Flexibility of Furniture Design
Staff have worked with the Sponsor Committee to review the provisions regarding the flexibility of the furniture design in the Policy and Design Guidelines document as tabled on August 26, 2009 to ensure that proponents understand that “one size does not fit all”. The RFP will include a requirement for proponents to demonstrate how their furniture designs will be adaptable to different parts of the city.
The Policy and Design Guidelines document and Report 3 direct the proponents to submit their furniture designs based on the approved guiding principles. Reference on pages 11 and 19 of the City of Ottawa Integrated Street Furniture Policy and Design Guidelines refers to the need for customization of the furniture:
“It is expected that the design of new street furniture is of high quality and incorporates a degree of customization to satisfy the needs of local BIAs and help distinguish character areas in the downtown.” (Page 11)
“An important theme identified from public consultations and the Industry Design and Functionality Workshop is the need for street furniture design to be flexible to accommodate new technology as it becomes available and to allow for customization of certain furniture elements.” (Page 19)
As one of several checkpoints in the RFP process outlined in Report 3, internal staff independent of the ISFP Project Team and an external design jury of experts will conduct an extensive evaluation and will recommend the proposals best meeting the Council approved design guidelines.
If, after this evaluation process, the panels are not satisfied that the furniture will meet our needs, staff will return to Council with recommendations on a revised approach. If staff return with a recommended proponent, and the BIAs are not in support of the design, the BIAs will, with the exception of transit shelters, have the ability to opt out of the program and fund their own furniture needs.
York Region Coordinated Street Furniture Model
Motion #6 asked staff to return with a revised version of the ISFP based on the York Region model. Staff have reviewed the York Region model as described below with the Sponsor Committee. After the Sponsor Committee had the opportunity to receive and review this information, the Committee recommends that it would be prudent to continue with the original approach with modifications as previously outlined in this report.
York Region Council, at its June 2007 meeting, authorized staff to issue an RFP for a coordinated street furniture program with advertising for a 15-year term. The proposed model was similar to the model proposed by City of Ottawa staff in Report 3, ACS2009-ICS-CSS-0020, with restrictions on advertising.
Upon further consideration in October 2007, York Regional Council requested that the RFP be modified to incorporate three bid options, as follows:
· Option A - Supply of Transit Shelters with advertising only.
· Option B - Supply of Street Furniture Elements with advertising only.
· Option C - Supply of both Transit Shelters and Street Furniture elements with advertising.
On January 7, 2008, York Regional staff released an RFP presenting options A, B, and C. In March 2008, the RFP submissions were received and subsequently evaluated by York Region and Local Municipal evaluation teams. The RFP was cancelled, as the bid submissions did not meet the Region’s design and operational requirements.
In September 2008, York Regional Council requested that staff prepare a report concerning the visioning and design principles and the matter of a future RFP for the coordinated street furniture program. As a result of this, York Region drafted their Co-ordinated Street Furniture Urban Design Guidelines.
At the request of Regional Council, in April 2009 York Regional staff prepared a further report identifying options and methodologies for structuring the RFP for the Coordinated Transit Street Furniture program that allows for both consolidated and split-bid submissions.
At its June 18, 2009 presentation to the York Region Transit Committee, staff requested the approval of an RFP that allows for both a consolidated and split bid with the coordinated street furniture design by the Region and a subsequent single RFP with consolidated and split bid options.
In this model, York Region will retain a design firm to design the furniture. The design will be used in the RFP for the supply, installation, maintenance, and associated revenue for coordinated street furniture with advertising. Split bids, or consolidated bid submissions will be allowed.
In order to support the urban design guidelines and to address the perception of excess advertising and clutter, the York Region coordinated street furniture program will allow for only one single element of street furniture at any given transit stop.
York Regional staff have identified that, based on previous experience, a split contract has the possibility to produce a single source supplier. The third-party fairness monitor for this project concurs with York Region staff’s concern that it would be difficult to determine if the Region is receiving fair value in the event that a split contract is responded to by a single supplier.
In order to implement the York Region model, project timelines for the City of Ottawa would have to be increased by an additional year and it would cost approximately $300,000 more to hire a design firm to design the furniture.
A considerable amount of time, research, and analysis has taken place to develop the existing City of Ottawa ISFP. Once the RFP is released, it will take almost two years before the new furniture makes its way to City streets. Considering that staff and Councillors receive regular complaints on the lack of furniture provided in our City’s rights-of way, it is important that the City not further delay the implementation of its ISFP program; otherwise, short term solutions for additional funding will be required to add furniture on City streets in areas of need.
Council has approved the Guiding Principles that have driven the approach taken to date. These principles ensure that the City implements a program that integrates high quality furniture with a coordinated advertising program that results in the design, manufacturing, installation, and maintenance of thousands of pieces of furniture for 20 years at little to no cost to taxpayers.
Given the City’s experience in other design and construction projects, it has been demonstrated that it is more effective to have those that are responsible for the design also be responsible for the construction. For instance, it would be too easy for the proponent to claim that they are not able to manufacture or maintain the furniture properly when they were not responsible for its design. The City will need to hold the successful proponent accountable every step of the way through this 20-year agreement.
The York Region Model allows for split bid options; however, Ottawa City Council has approved advertising exclusivity to one ISFP proponent through the February 2009 ISFP Report 2.
Since August 26, 2009 consultation has taken place with staff from York Region and the City of Toronto on their current model for street furniture, and further consultation with the BIAs with respect to advertising restrictions is underway.
There are no legal or risk management impediments to implementing the recommendations in this report. That being noted, it will nevertheless be important that, as with other high profile and significant procurement processes undertaken by the City, proponents respect and adhere to the process and requirements set out in the City’s Request for Proposal. In turn, the City has an obligation to conduct a fair, open, and impartial procurement process. A Fairness Commissioner will oversee the City’s procurement process and will be able to provide guidance as required as the process unfolds.
The ISFP is on target and does not foresee any need for additional funding to support this project.
Document 1 Transportation Committee Meeting Recommendations and Actions since August 26, 2009.
Document 2 ISFP Restricted Advertising Area Map (See Figure 1 in ACS2009-ICS-CSS-0020)
Subject to the approvals and motions originating from Report 3 that was originally before Committee on August 26, 2009 (the substantive report), staff will amend the City of Ottawa Integrated Street Furniture Policy and Design Guidelines document, issue the ISFP RFP in November 2009, and report to Council in the fourth quarter of 2010 for final approval of the preferred proponent.
TRANSPORTATION COMMITTEE MEETING RECOMMENDATIONS
AND ACTIONS SINCE AUGUST 26, 2009
Integrated Street Furniture Program ("ISFP") - City of Ottawa Integrated Street Furniture Policy and Design Guidelines and Request for Proposal Strategy
Programme intégré de mobilier urbain – Politique de la Ville d’Ottawa sur le mobilier urbain intégrÉ et DIrectives de conception et stratégie concernant la demande de proposition
That Transportation Committee recommend that Council:
1. Approve and endorse the City of Ottawa Integrated Street Furniture Policy and Design Guidelines as discussed in this report and set out in Document 1;
2. Authorize staff to issue an RFP in accordance with the strategy discussed in this report and direct that no further street furniture elements be separated from the ISFP to ensure success of the RFP and the resulting program;
3. Limit advertising on street furniture elements to transit shelters and information and way-finding kiosks; and
4. Direct staff to return to Council in the first quarter of 2010 for final approval of the preferred proponent.
Action – See supplemental Report – “RFP Process and Timelines.”
5. That when the Integrated Street Furniture Program comes forward at the 7 October 2009 meeting of the Transportation Committee that discussion and debate be limited to any new or amended information as a result of the deliberation of the Committee on August 26 and that no delegations be heard.
6. That staff return with a revised version of the present Integrated Street Furniture program, an alternative based on the York Region model where the city prepares the design requirements and then issue a RFP based on the city designs and separates large corporate from local advertisers.
Action – See Supplemental Report – “York Regional Coordinated Street Furniture Model” for information only.
7. That the ISFP timeline be revised to allow for more time for respondents (to the end of Q1, 2010 – minimum of 6 months from the issuance of the RFP) to prepare their submissions to the City’s RFP.
Action – See Supplemental Report – “RFP Process and Timelines.”
8. That the ISFP RFP process incorporates the services of City’s Fairness Commissioner.
Action – Staff hired the Fairness Commissioner retained in September 2008; also see Supplemental Report – “Legal/Risk Management” section of report.
9. That the Internal staff completing the “technical, functional, and design review” include representatives from the City of Ottawa Heritage Staff, the National Capital Commission and a specialist in Crime Prevention through Environmental Design.
Action – Staff will include the groups identified.
10. That the Policy and Design Guidelines be modified to incorporate a Central City designated area where integrated street furniture and restricted advertising potential as proposed by staff is incorporated; and for other areas of the City a more flexible approach be used which permits special BIA design areas, as well as variations for different parts of the City which may also have some of the same elements as the Central City areas (e.g. bus shelters).
Action – See Supplemental Report – “Advertising Restrictions” for details on the Central Area restrictions and flexibility in other areas. See Policy Design Guidelines pages 11 and 19, and Report 3 Sections ISFP Legal Agreement, Business Case Analysis, and Continued Consultations for confirmation of flexibility in design requirements for BIAs.
11. That given the size of Transitway style platforms on Rideau Street that size restrictions for advertising be established with the BIA.
Action – Size of ad panels will be the same as the standard 4x6 panels; larger ad panels will not be permitted. See Policy Design Guidelines page 41 for ad panel size restriction.
12. That the Downtown Rideau BIA area remain a restricted area for advertising on street furniture (except Transit Shelters) as is the current status.
Action – See Supplemental Report – “Advertising Restrictions” for consideration of expanding the Central City Area.
13. That with the elimination of Item 3 of the Report that consultation with BIAs on elements advising that would be acceptable to the Specific Ottawa BIAs.
Action – Staff are in the process of confirming with each BIA their position on advertising on other elements. Previous consultations indicated many support restrictions to transit shelters and information wayfinding kiosks.