REPORT

RAPPORT

 

 

DATE:

 

21 June 2004

TO:

 

Executive Director, Ottawa Police Services Board

FROM:

 

Director General, Ottawa Police Service

SUBJECT:

DELEGATION OF AUTHORITY AND AWARD OF CONTRACT FOR THE ACCOMMODATION MASTER PLAN

 

RECOMMENDATION

 

That the Ottawa Police Services Board:

 

1.            Approve the pre-qualification of general contractors, attached as Annex “A”, to bid on the construction work packages required to complete renovations associated with the Accommodation Master Plan (AMP) for a period of 36 months.

 

2.            Approve the award of a general construction contract to Warlyn Construction Ltd. (Ottawa, Ont.) for a total of $887,480 including a contingency allowance and applicable taxes to implement Work Package 11 on Level 0 at Elgin Station.

 

3.            Delegate authority to the Chief of Police to award contracts to the lowest responsive bidder using the pre-qualified general contractors to implement other AMP work packages, in accordance with the OPS Finance & Procedures Manual, ranging in value from $75,000 to $750,000, for an amount not to exceed $1,800,000.

 

4.            Delegate authority to the Chief of Police to award contracts and make payments for an amount not to exceed $800,000 to:

a)            Fulline Business Interiors and Advance Business Interiors for the supply of furniture, and

b)            Various contractors for the supply and installation of IT/telecommunications cabling and equipment.

 

 

BACKGROUND

 

The Accommodation Master Plan (AMP) was initiated as a result of the 1995 amalgamation of the former Ottawa, Nepean and Gloucester Police Services.  The plan identifies the physical environment required to support the delivery of police services under the OPS service delivery model, at sites across the City.

 

Work began on the AMP in 1997.  The first stage consisted of a Facility Study and Design Concept report followed by stage two, an implementation schedule and cost plan.  The Police Services Board approved close to $11 million to implement the plan.  This amount was supplemented by an amount of $730,000 in 2003 and $750,000 in 2004, bringing the total budget envelope for the AMP to approximately $12.5 million.

 

The Facility Acquisition Plan (FAP) is a key facilities capital project that was approved by the Board in 1998 and which compliments the AMP.  Through the analytical work undertaken as part of the AMP, staff identified the need to expand the portfolio of OPS facilities.  The key recommendations have all been implemented.  New leased, owned or re-developed facilities now exist to meet the need for:

·        an expanded training facility;

·        a divisional facility in the Kanata area, to coincide with the assumption of policing responsibilities from the OPP;

·        a divisional facility in the eastern region of the City to replace Blair Road;

·        a secure warehouse building for evidence and quartermaster functions.

 

Implementation of the AMP began in 1998.  As Annex C shows, a significant amount of work has been undertaken.  Close to $8.9 million has been invested in OPS facilities and more than 10 work packages have been completed.  As a direct result of this work, the accommodation environment of OPS has noticeably improved since amalgamation, from a functional, ergonomic and aesthetic perspective.

 

The AMP was developed on the premise that the Quartermaster (QM) and Evidence Control Services Sections would be relocated to an off-site facility.  In 2000, all outstanding AMP work packages for Elgin Station were put on hold until off-site locations could be found for these two sections which occupied a significant amount of space on Level 0 of that facility.

 

In 2002, staff presented solutions to the Board for those location issues.  In July 2002, the Board approved the relocation of the QM Section into renovated space at Leitrim Station.  In September 2002, the Board approved the relocation of the Evidence Control Services Section to a new facility at the Charles Sims Municipal Workshops and Garage on Swansea Crescent.  The move of the QM Section to their new location was completed in October 2003 and the new Evidence Control Services facility opened to the public on 21 June 2004.

 

 

DISCUSSION

 

With the relocation of QM and the Evidence Control Services groups, the AMP work packages on Level 0 at Elgin can now be implemented.  These packages bring some unique challenges:

·        The space itself is large and covers over 55,686 square feet;

·        Much of the space was used for storage and has none of the amenities associated with an office environment;

·        The Elgin facility is over 20 years old and was not designed to meet the electrical and mechanical loads required to work in a computerized environment; 

·        There is no surplus space in which to relocate employees during construction. 

 

To ensure the continuous operation of key police functions at Elgin Station during construction, it will be necessary to break down the renovation work into small work packages.  There are six packages planned for 2004 and 2005.  The successful implementation of each work package depends on the coordination of all the necessary activities required including construction, the purchase and installation of furniture/ equipment/ cabling and the move of employees in their new workspaces.

 

Work Packages to be Completed in 2004

 

Funding is available in the AMP capital project to carry out the work packages identified for 2004.

 

Work Package # 11 (Total area 16,210 square feet.): Elgin Level 0 - Relocate Central Patrol (Administrative, Districts and Platoons) and a component of Emergency Operations Services in space vacated by QM, Evidence Control and Mail Services.  

 

The existing spaces are storage quality with bare concrete walls and floors and unfinished ceilings with minimal mechanical and electrical output.  This space will be completely refit into police operational space accommodating 96 employee workstations, file storage, specialty equipment storage rooms, common use briefing and meeting rooms designed to meet present and future operational needs including SSI staffing requirements for these sections. 

 

Work Package # 12 (Total area 2,600 square feet): Relocate Mail Services from Level 0 - Elgin Station to Greenbank Station.  This move is required to make place for Central Patrol requirements. 

 

Work Package # 13 (Total area 16,793 square feet): Elgin Level 0  - The space vacated by the relocation of Central Patrol and the Emergency Operations Services will be realigned to house Youth Services, Courts Charge Coordinators, Victim Crisis Unit.

 

The existing space is of poor quality and does not suit present operational needs.  It requires a complete rebuild, including the locker room finishes, and will accommodate 29 employee workstations, file storage, meeting rooms designed to meet present and future operational needs including SSI staffing requirements for these sections. 

 

Work Package # 14:  In 2003, the Board approved $230,000 within the AMP capital fund to provide improvements to the Main Information Desk at Elgin station.  Design development has started on this project and construction is scheduled to be completed by the end of 2004.

 

Work Packages Proposed for Implementation in 2005

 

Funding for the work packages identified for implementation next year will be included in the 2005 capital budget submission. 

 

Work Package #15: Finalize Levels 1 and 2 at Elgin Station.

 

Work Package #16: Initiate the upgrade and expansion of the Central Cellblock, also located at Elgin Station.  The cellblock upgrade is required to offer the continued provision of a safe working environment for cellblock staff and a safe, clean and monitored environment in which prisoners can be documented and housed.  The expansion will increase the number of cells by roughly 30%, in keeping with the increase in the number of prisoners processed through the Elgin Street Cellblock.  Cellblock renovations and expansion include a total of 13,403 square feet and may be phased in multiple work packages to ensure the continuous function of the cellblock during construction.  Staff will return to the Board in 2005 for design and construction approval.

 
Implementation Strategy

 

Staff are recommending that OPS continue to use the successful AMP implementation strategy learned from past experience.  This approach provides OPS with the ability to get the work done in a timely manner, and also recognizes the Board’s need to ensure that reasonable approval controls are in place.  The strategy involves several elements and it duplicates the approach that has been used to-date for the AMP:

·        Identifying manageable work packages;

·        Developing a list of Board approved, pre-qualified contractors;

·        Requesting construction bids from the group of pre-qualified contractor on each of the work packages, as they are ready to be undertaken;

·        Providing the Chief with delegated authority to award these work package construction contracts, so that the work can proceed on a timely basis  - within a maximum specified limit;

·        Providing the Chief with delegated authority to award contracts to the OPS office furniture and IT/telecommunications suppliers so that work can proceed on a timely basis – within a maximum specified limit.

 

Each of the recommendations discussed below is a key part of the successful implementation of the AMP for 2004 and 2005.

 

Recommendation # 1 - Pre-qualification of General Contractors

 

In 1999, the Board approved the pre-qualification of General Contractors and delegated authority to the Chief of Police to award contracts to implement AMP construction work packages.  This pre-qualification expired in June 2002.

 

With the anticipated implementation of the remaining approved AMP work packages, a Request for Qualification (RFQ) to pre-qualify General Contractors was issued by the Supply Management Division in July 2003.  Seven General Contractors successfully pre-qualified to bid on AMP construction projects.  However, due to the delay in moving Property Services to their new location and revising the scope of each work package into smaller projects to minimize disruptions to critical police operations, it was determined with Supply Management to re-issue the RFQ, due to lower bonding requirements, as a result of the smaller work packages in order to allows firms that would not have qualified under the minimum bonding requirements of the first RFQ.  General contractors that pre-qualified under the initial RFQ were advised of the situation and invited to remain on the list of approved contactors.

 

In May 2004, a second Request for Qualification (RFQ) was issued by the Supply Management Division and posted electronically with the Ottawa Construction Association.  Fourteen submissions were received. 

 

A committee, chaired by the City’s Supply Management Division, was established to evaluate the submissions.  The committee included the OPS Master Accommodation Plan Manager, the City’s RPAM OPS Facilities Portfolio Manager, a representative from Constantino Architects and the Project Manager from MHPM.  The evaluations were based solely on the content of the submission and were scored in accordance with the evaluation criteria and weightings as detailed in the RFQ.  All individuals bidding and working on police projects are required to have a security check completed by the OPS.

 

The pre-qualification of general contractors was based on the submissions scoring a minimum of 70 points using a scale of 100 points.  Submissions were evaluated using the following criteria as detailed in the Request for Qualification:

 

a) Capability of Contractor (34 points)

·        Depth and range of experience

·        Statement of bonding capability

·        Local representation

·        Staff resources

·        Financial and insurance capability

 

b) Experience (60 points)

·        Comparable renovation projects

·        Renovations of security facilities

·        Project control (schedule, cost and communication)

 

c) RFQ Submission (6 points)

·        Correct information supplied

·        Number of pages

·        Quality of submission

 

As a result of the evaluations, it is recommended that a total of twelve general contractors who scored a minimum of 70 points be pre-qualified to bid on AMP work packages (see Annex “A”).  Work packages will be tendered through the Supply Management Division to the pre-qualified General Contractors and awarded to the lowest responsive bidder.  

 

Recommendation # 2: Award of Construction Contract

 

The first work package was issued for tender by Supply Management to all pre-qualified general contractors on 1 June 2004 and closed on 14 June 2004.  A total of nine tenders were received as detailed in Annex “B”.

 

OPS and Supply Management reviewed the submissions and are recommending that the contract be awarded to Warlyn Construction Ltd. (Ottawa, Ont.) in the amount of $887,480.  The request includes a contingency amount to address change orders to the construction contract and applicable taxes.  Change orders typically arise from unknown site conditions and client initiated changes. 

 

The lowest bidder was considered to be non-responsive.  They did not state the value of the deposit on their Bid Bond.  This missing information is considered a major irregularity in accordance with the Purchasing By-Law, Schedule “A”, Item #3.

 

Recommendation # 3: Delegated Authority for Construction Contracts

 

Staff are requesting delegated authority be provided to the Chief of Police to award future construction contracts tendered using the pre-qualified contractors to implement work packages as required to complete the AMP.  This pre-qualification is valid for a period of 36 months and is needed to cover AMP requests for 2005, not including the proposed expansion and renovation of the cellblock.  

 

By awarding delegated authority, the Board will ensure that the delivery of each work package is delivered in a timely manner to meet OPS operational requirements.  The pre-qualification of general contractors ensures:

·                    the quality of performance meets the OPS standards and all building codes requirements;

·                    contractors biding on the work packages have the required security clearances;

·                    the co-ordination required to meet project implementation time lines.

 

Work packages will be tendered by Supply Management for an amount not to exceed $1,800,000.

 

Recommendation # 4:  Delegated Authority for Furniture, Equipment and Cabling

 

Staff are requesting that the Board delegate contract authority to a maximum of $800,000 to the Chief to undertake the activities required to ready renovated spaces for occupancy to avoid any unacceptable delay in project completion.  All purchases will be made using the City’s Supply Management Division and in accordance with the OPS “Finance and Administration Procedures Manual”.

 

The furniture component includes items such as:  standardized systems furniture, cabinets, tables, chairs and lockers.  The items will be purchased in accordance with the standards for furniture adopted by the Board in January 1999 and used throughout the Accommodation Master Plan fit-ups.  Furniture and related items will be purchased from Fulline Business Interiors and Advance Business Interiors in accordance with the standing offers that the Board established in 1999 for an amount not to exceed $800,000.

 

The AMP renovations, also includes the requirement for new telecom, IT cabling and equipment.  These items will also be in keeping with the technical and functional standards established by the organization.  This aspect of the fit-up is estimated to cost $100,000.

 

PUBLIC CONSULTATION

 

The public consultation process was not applicable in this case.

 

FINANCIAL STATEMENT

$

Approved Budget to Date         12,474,000

Total Paid and Committed          8,891,500

Balance Available                       3,582,500

This Request:            3,487,480

Remaining Balance        95,020

 

 

CONCLUSION

 

The successful implementation and delivery of the Accommodation Master Plan work packages depends on the coordination of a wide range of activities.  By approving the recommendations in the report and providing the Chief of Police with delegated authority to award contracts, the Board will ensure the timely delivery of the renovations.  The Director General will report to the Board on a quarterly basis any contracts awarded by the Chief under delegated authority in accordance with the Financial and Administration Procedures Manual.

 

 

________________________________                               

Glen Ford        

Manager, Supply Management Division

 

_____________________________                         

Debra Frazer                                                                           

Director General                                                                      

 

______________________________

Vince Bevan

Chief of Police

 

Attachs. (3)

Annex A

 

Accommodation Master Plan - General Contractor - Request for Pre-qualification

 


July 2003 Request for Pre-qualification - RFQ 15403-90976-Q01


1.         Daoust Moore Construction

        

2.         Frecon Construction

      

3.         Ledcor Construction  

             

4.         M.P. Lundy Construction  

               

5.                  Nicolini Construction       

 

6.                   R.E. Hein Construction            

 

7.         Westeinde Construction 

 

 


May 2004 Request for Pre-qualification - RFQ 15403-90976-Q01A

 

8.         Bradford Construction

 

9          Garvey Construction

 

10.       McDonald Bros. Construction

 

11.              Ruiter Construction

 

12.              Warlyn Construction

 

 

Annex B

 

Accommodation Master Plan - General Contractor - Request for Tender

Tender No.: 15404-91065-T01

 

 

Bidders                                               Location of Firm                     Total Price ($)

 

Westeinde Construction                        Nepean, Ontario                            809,700

 

Garvey Construction Limited                 Ottawa, Ontario                         * 724,700

 

1135263 Ontario Limited

o/a Bradford Construction                    Ottawa, Ontario                            876,900

 

Warlyn Construction Ltd.                      Ottawa, Ontario                            783,300

 

3646688 Canada Inc.

o/a R.E. Hein Construction                   Kanata, Ontario                             818,742

 

Ledcor Construction Limited                 Kanata, Ontario                             821,500

 

Nicolini Construction &

Engineering Ltd.                                    Ottawa, Ontario                         1,283,000

 

Frecon Construction Limited                 Russell, Ontario                             993,000

 

Daoust Moore Construction Inc.           Ottawa, Ontario                            867,867

 

 

* did not state value of deposit on their Bid Bond (major irregularity in accordance with the

   Purchasing By-Law, Schedule “A”, item #3).

 

Annex C

Accommodation Master Plan Work Packages

 

Completed work packages

 

A number of functions were re-aligned within existing buildings, prior to and during the AMP facilities functional requirement study (1995-1998), to support the effective delivery of police services to the community during the amalgamation period.  These projects included:

 

·                    Communications Centre - Elgin

·                    Forensic Identification Section (not including photo lab) - Elgin

·                    Central Division Cell Block - Elgin

·                    Information Desk - Elgin

·                    Traffic - Investigations and Enforcement Sections - Greenbank

·                    Locker Rooms - Elgin, Greenbank and Leitrim

·                    Bicycle Storage - Property Services - ROPEC

 

AMP Work package # 1:  Greenbank - Completed in 1999                          

·                    Break and Enter - Level 3

·                    Duty Inspectors - Level 1 

·                    Criminal Intelligence - Level 3

·                    Community Response Unit - Level 1 (with the redeployment of staff within the enhanced Service Delivery Model, this space was re-assigned to house the newly established Call Centre)

·                    Canine Unit - Level 1

·                    High-Tech Crime Team - Level 3

 

AMP Work package # 2: Elgin - Completed in 1999

·                    Executive Command - Level 3

·                    Information & Technology - Level 3

·                    Corporate Planning - Level 3 and 1

·                    Media Relations including Boardroom - Level 2

·                    CIS - Polygraph Section - Level 2

 

AMP Work package # 3:  Greenbank Level 2 - Completed in 1999

·                    Patrol Service - Districts 11,12, 13 and 16

·                    Youth - West Division

·                    IT - West Division

·                    Diversity & Race Relations

·                    B&E/GAS - West Division

·                    Information Desk (office area only)

·                    Crime Analyst - West Division

·                    Victim Crisis Unit - West Division

·                    Crime-Free Multi-Housing Unit

·                    Police Futures Group

·                    Hate Crime - Level 1

·                    Crime Stoppers - Level 1

·                    Base Building Receiving Bay- Level 1

 

AMP Work package # 4:  Elgin Street - Level 2 - Completed in 2000

·                    CIS - Superintendent and Inspectors

·                    Major Crime

·                    Surveillance Squad

·                    Fraud Section

·                    Admin/Auto Theft

·                    SACA

·                    Partner Assault

·                    On-site Drug Office

 

AMP Work package # 5:  Elgin - Level 1- Partial Records Section - Completed in 2000

·                    Records - CPIC

·                    Records - Criminal Records

·                    Records - Data Entry

·                    Information Desk

·                    Shared office

 

AMP Work package # 6:   

Elgin Level 1 - Professional Standards Section - Completed in 2002

 

AMP Work package # 8:  Leitrim Station - Completed in 2003

·                    QM Services

·                    Accommodation Master Plan

·                    Common use Space

·                    BSAC

 

AMP Work package #7:

Elgin Level 1 - Remaining Records Fit-up - Completed in 2003

 

AMP Work package # 9:  Court House, 161 Elgin Street - Completed in 2003

·                    Court Liaison

·                    Court Security

 

AMP Work package # 10: Elgin - Level 00 - Completed 2004

·                    Storage space for Records, IT Equipment, Historical Items, Emergency Response and furniture.

Upcoming Work packages to be completed within approved funding

 

AMP Work package #11: Elgin - Level 0 - to be completed October 2004

·                    Central Patrol

·                    Emergency Operations Services

·                    Common spaces

 

AMP Work package # 12: Greenbank - Level 2 - to be completed September 2004

·                    Mailroom

·                    West Patrol - Traffic

 

AMP Work package # 13:  Elgin - Level 0 - to be completed January 2005

·                    Youth Services

·                    Court Charge Coordinators

·                    Victim Crises Unit

·                    Special project space

 

AMP Work package # 14:  Elgin - Level 1 - to be completed December 2004

·                    Information Desk

 

 

Work packages proposed for implementation in 2005 pending funding

 

AMP Work package # 15:  Elgin - Level 1 and 2

·                    Financial Services

·                    Human Resources

·                    Common Use Space

·                    Superintendent Support Services

·                    Director IT Services

 

AMP Work package # 16:  Elgin - Level 0

·                    Existing Cell block upgrades

·                    Cell block expansion

 

AMP Work package # 17:  Various Buildings - SSI Requirements