REGIONAL DISTRICT OF CENTRAL OKANAGAN REGULAR BOARD MEETING AGENDA 8:30 am (following a Governance & Services Committee Meeting)
Thursday, October 13, 2016 Woodhaven Board Room 1450 K.L.O. Road, Kelowna, BC
Pages
1. CALL TO ORDER
2. ADDITION OF LATE ITEMS
3. ADOPTION OF THE AGENDA
(All Directors - Unweighted Corporate Vote - Simple Majority - LGA 208.1)
Recommended Motion:
THAT the agenda be adopted.
4. ADOPTION OF MINUTES
4.1 Regional Board Meeting Minutes - September 19, 2016 1 - 5
(All Directors - Unweighted Corporate Vote - Simple Majority - LGA 208.1)
Recommended Motion:
THAT the Regional Board meeting minutes of September 19, 2016 be adopted.
5. CORRESPONDENCE
5.1 Westbank First Nation - Appointments to the Regional Board & EDC Advisory 6 - 7 Board
(All Directors - Unweighted Corporate Vote - Simple Majority - LGA 208.1)
Recommended Motion:
THAT the September 28, 2016 letter from Westbank First Nation regarding appointments for WFN on the Regional Board and the RDCO Economic Development Commission be received for information. 6. BUSINESS ARISING
6.1 Thompson Okanagan Tourism Association KVR Rail Trails Strategy Update 8 - 155
(All Directors - Unweighted Corporate Vote - Simple Majority - LGA 208.1)
Recommended Motion:
THAT the Regional Board support, in principle, the Thompson Okanagan Rail Trails Tourism Strategy 2016 – 2022.
7. CORPORATE SERVICES
7.1 RDCO Responsible Dog Ownership Amendment Bylaw 156 - 161
First, Second and Third Readings, and Adoption
(All Directors - Unweighted Corporate Vote - 2/3 Majority - LGA 208.1 & 228)
Recommended Motion:
THAT RDCO Responsible Dog Ownership Amendment Bylaw be given first, second and third readings and adopted.
7.2 RDCO Bylaw Notice Enforcement Amendment Bylaw & RDCO Ticket 162 - 169 Information Utilization Amendment Bylaw
First, Second and Third Readings, and Adoption
(All Directors - Unweighted Corporate Vote - 2/3 Majority - LGA 208.1 & 228)
Recommended Motion:
THAT Regional District of Central Okanagan Bylaw Notice Enforcement Amendment Bylaw be given first, second and third readings and adopted.
Recommended Motion:
THAT Regional District of Central Okanagan Ticket Information Utilization Amendment Bylaw be given first, second and third readings and adopted.
7.3 RDCO Starling Control Program Grant Service Establishment Bylaw 170 - 179
First and Second Readings
(All Directors - Unweighted Vote - Simple Majority - LGA 208.2)
Recommended Motion:
THAT RDCO Starling Control Program Grant Service Establishment Bylaw No. 1393 be given first and second readings;
AND FURTHER THAT the bylaw be forwarded to the municipal councils and electoral area directors to receive consent prior to third reading. 8. FINANCIAL SERVICES
8.1 Appointment of RDCO Auditors – 5-Year Term (2016 – 2020) 180
(All Directors - Unweighted Vote - Simple Majority - LGA 208.2)
Recommended Motion:
THAT the Board appoint BDO Canada LLP as the RDCO’s auditors for a period of 5 years commencing with the year ended December 31, 2016.
9. COMMUNITY SERVICES
9.1 Zoning Bylaw No. 871-226 181 - 185
Adoption
For Aljac Holdings Company Ltd., located adjacent to Kilkenny Place, Westside Road and Okanagan Lake, (Z14/06)
(Custom Vote - Fringe Area, Electoral Areas Only - 1 Director, 1 Vote)
Recommended Motion:
THAT Zoning Amendment Bylaw No. 871-226, application Z14/06, be adopted.
9.2 RDCO Subdivision Bylaw 186 - 236
First, Second and Third Readings, and Adoption
(Custom Vote-Fringe Area, All Directors - 2/3 Majority - LGA 228)
Recommended Motion:
THAT Regional District of Central Okanagan Subdivision Servicing Bylaw be given first, second, third reading and adopted.
9.3 Westside Regional Wastewater Treatment Plant Operational Review 237 - 282
(Stakeholder Vote - Weighted - West Kelowna and Peachland - LGA 209.1)
Recommended Motion:
THAT the Board endorse the recommendations in the Opus DaytonKnight report dated April11, 2016.
10. PARK SERVICES
No Board Action Required
11. NEW BUSINESS
11.1 Director Hanson - Request to Travel to SILGA Educational Session 283 - 286
(All Directors - Unweighted Corporate Vote - Simple Majority - LGA 208.1) Recommended Motion:
THAT the Board suggest Director Hanson attend the SILGA educational sessions being offered in West Kelowna.
11.2 Committee Appointment - Westside Wastewater Treatment Service 287 Stakeholder Select Committee
(All Directors - Unweighted Corporate Vote - Simple Majority - LGA 208.1)
Recommended Motion:
THAT the Board approve the appointment of Tom Konek to the Westside Wastewater Treatment Service Stakeholder Select Committee.
11.3 Rise & Report from Governance & Services Committee Meeting - Oct 13, 2016
(All Directors - Unweighted Corporate Vote - Simple Majority - LGA 208.1)
12. DIRECTOR ITEMS
13. ADJOURN IN CAMERA
THAT Pursuant to Section 90 (1)(c)(g) of the Community Charter the Regional Board adjourn and convene to a closed to the public meeting - 'In Camera' session to discuss:
· the acquisition of land
· litigation or potential litigation affecting the Regional District
14. RISE & REPORT FROM IN CAMERA
Minutes of the REGULAR REGIONAL BOARD MEETING of the Regional District of Central Okanagan held at Regional District Offices, 1450 KLO Road, Kelowna, B.C. on Monday, September 19, 2016 ______
Directors: J. Baker (District of Lake Country) C. Basran (City of Kelowna) W. Carson (Central Okanagan West Electoral Area) M. DeHart (City of Kelowna) D. Findlater (City of West Kelowna) C. Fortin (District of Peachland) G. Given (City of Kelowna) T. Gray (City of Kelowna) M. Bartyik, alternate for P. Hanson (Central Okanagan East Electoral Area) D. Ophus (City of West Kelowna) B. Sieben (City of Kelowna) L. Stack (City of Kelowna)
Absent: C. Derickson (Westbank First Nation)
Staff: B. Reardon, Chief Administrative Officer R. Fralick, Manager of Planning M. Kopp, Director of Parks C. Radford, Director of Community Services M. Rilkoff, Director of Finance B. Smith, Communications M. Drouin, Manager - Corporate Services (recording secretary)
1. CALL TO ORDER
Chair Given called the meeting to order at 7:00 p.m.
2. ADDITION OF LATE ITEMS
No additional items
3. ADOPTION OF THE AGENDA
#198/16 FORTIN/BAKER
THAT the agenda be adopted.
CARRIED Unanimously
4. ADOPTION OF MINUTES
4.1 Regional Board Minutes – September 8, 2016 (All Directors - Unweighted Corporate Vote - Simple Majority - LGA 208.1)
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Regional District of Central Okanagan Regular Board Meeting Minutes – September 19, 2016 (Pg. 2)
#199/16 STACK/BAKER
THAT the Regular Board meeting minutes of September 8, 2016 be adopted.
CARRIED Unanimously
5. DELEGATION
5.1 Kris Nichols, Ministry of Community, Sport and Cultural Development re: Regional Growth Strategy (All Directors - Unweighted Corporate Vote - Simple Majority - LGA 208.1)
K. Nichols provided an overview to the Board of the benefits of adopting a Regional Growth Strategy (RGS) in the region. Staff report dated September 12, 2016 outlined background information on the RGS. Provincial staff is currently touring four regional districts providing information on RGS, what others are doing within the province, and what we are doing within the Central Okanagan.
Director Basran arrived at 7:05 p.m.
It was noted that RGS are not prescriptive—there are minimum requirements for regional districts to meet. It is all about collaboration between the regional districts, municipalities and the Province.
#200/16 FORTIN/BARTYIK
THAT the report presented by Kris Nichols, Ministry of Community, Sport and Cultural Development on the Regional Growth Strategy be received for information.
CARRIED Unanimously
6. CORPORATE SERVICES
6.1 Okanagan Film Commission Governance Review (All Directors - Unweighted Corporate Vote - Simple Majority - LGA 208.1)
Staff report dated September 9, 2016 outlined the findings of the Board requested Okanagan Film Commission (OFC) governance review as part of the RDCO Strategic Plan. Staff reviewed the key changes the OFC Board has undertaken during 2016. The Central Okanagan is the primary funder of the Commission and has one representative on their Board. Questions were raised regarding voting structure and entitlement.
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Regional District of Central Okanagan Regular Board Meeting Minutes – September 19, 2016 (Pg. 3)
#201/16 BAKER/STACK
THAT the Board receive the CAO report dated September 9, 2016 for information;
AND FURTHER THAT the Board seeks additional information regarding the Okanagan Film Commission structure and voting entitlement of its board members.
CARRIED Unanimously
6.2 North Westside Communities Association Request for a Letter of Support - Governance Review Study (All Directors - Unweighted Corporate Vote - Simple Majority - LGA 208.1)
Staff report dated September 12, 2016 provided an interim report regarding the request for a Letter of Support from the North Westside Communities Association for a governance review study.
At the August 22, 2016 meeting the Association presented to the Board. The Ministry’s Governance and Structure Branch responded to the invitation to attend a Board meeting but confirmed staff would not be available to attend prior to UBCM. It was noted that the RDCO has not yet received a copy of the petition from the Association. Director Carson presented a copy noting signatures are still being sought. Staff has just begun reviewing the implications of a governance change to the RDCO and the residents of the North Westside Fire Protection Area.
#202/16 STACK/BAKER
THAT the Regional Board receive the CAO report dated September 12, 2016 for information.
CARRIED Unanimously
#203/16 BAKER/SIEBEN
THAT a letter be sent to Minister Fassbender outlining a chronology of events in regards to the request by the North Westside Communities Association for a governance study; and confirm that the Regional Board has heard there is interest for a governance study by some residents of the North Westside; and that a copy of a petition circulated by the North Westside Communities Association was provided to the Regional District on September 19th; and further that the Board supports Director Carson having a meeting with the Minister on September 23rd; and further that the Board looks forward to receiving a delegation by Ministry staff to outline the Province’s role and options for a governance study.”
CARRIED Unanimously
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Regional District of Central Okanagan Regular Board Meeting Minutes – September 19, 2016 (Pg. 4)
7. FINANCIAL SERVICES
No Board Action Required
Directors Fortin and Dehart left the meeting at 8:40 p.m.
9. PARK SERVICES
9.1 RDCO/Westbank First Nation Community to Community Forum Update (All Directors - Unweighted Corporate Vote - Simple Majority - LGA 208.1)
Staff report dated September 12, 2016 outlined the planned Community to Community Forum with Westbank First Nation and the Regional Board which is to take place on October 12, 2016.
#204/16 OPHUS/BAKER
THAT the Board receive for information the update report dated September 12, 2016 from the Director of Parks Services regarding the RDCO/Westbank First Nation C2C Forum.
CARRIED Unanimously
10. NEW BUSINESS
No Board Action Required
11. DIRECTOR ITEMS
At a recent community event in Traders Cove, the RDCO and the Emergency Operations Centre were recognized for their work during the Bear Creek fire. Director Fortin noted that the District of Peachland won the OBWB ‘Make Water Work Community Championship’ based on the most per capita pledges than anywhere in the Okanagan.
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Regional District of Central Okanagan Regular Board Meeting Minutes – September 19, 2016 (Pg. 5)
12. ADJOURN IN CAMERA (All Directors - Unweighted Corporate Vote - Simple Majority - LGA 208.1)
#205/16 SIEBEN/GRAY
THAT pursuant to Section 90 (1)(c)(k) of the Community Charter the Regional Board adjourn and convene to a closed to the public meeting - ‘In-Camera’ session to discuss: • Labour relations or other employee relations • negotiations and related discussions respecting the proposed provision of a service that area at their preliminary stages
CARRIED Unanimously
There was no further business the meeting was adjourned at 8:55 p.m.
CERTIFIED TO BE TRUE AND CORRECT
______G. Given (Chair)
______B. Reardon (Director of Corporate Services)
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6 7 Regional Board
Report
TO: Regional Board
FROM: Murray Kopp Director – Parks Services
DATE: September 30, 2016
SUBJECT: Thompson Okanagan Tourism Association KVR Rail Trails Strategy
Voting Entitlement: All Directors – Unweighted Corporate Vote, Simple Majority – 208.1
Purpose: To provide a follow-up report on the request for support of the Thompson Okanagan Rail Trails Tourism Strategy by the Thompson Okanagan Tourism Association (TOTA).
Executive Summary: At the regular Board meeting held on July 25, 2016 the Board received a delegation from TOTA who presented the Thompson Okanagan Rail Trails Tourism Strategy 2016 - 2022 and sought the Board’s endorsement of the strategy. At this meeting the Regional Board adopted the following resolution: #163/16 THAT staff be directed to report back to the Board regarding the request for Board endorsement of the Thompson Okanagan Rail Trails Tourism Strategy. Parks Services staff has reviewed the Thompson Okanagan Rail Trails Tourism Strategy 2016 - 2022 and wish to advise the Board of Directors that the initiative has the potential of providing significant social and economic benefits for recreational trail use & tourism based opportunities in the Okanagan Valley including the Central Okanagan. These opportunities should be considered in conjunction with the Board’s current strategic plan and priorities as part of the annual financial planning process. There is no financial commitment being made at this time.
RECOMMENDATION:
THAT the Regional Board support, in principle, the Thompson Okanagan Rail Trails Tourism Strategy 2016 – 2022.
Respectfully Submitted:
Approved for Board’s Consideration
Brian Reardon, CAO Murray Kopp Director – Parks Services
Attachment(s): 1. Thompson Okanagan Rail Trails Tourism Strategy 2016 - 2022 2. July 6, 2016 TOTA Email to RDCO Requesting Delegation Opportunity to RDCO 3. July 25, 2016 TOTA Thompson Okanagan Rail Trails Tourism Strategy Presentation
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9 Thompson Okanagan Regional Rail Trails Tourism Strategy
EXECUTIVE SUMMARY
INTRODUCTION
The rail trail system in the Thompson Okanagan has the potential to draw both domestic and international visitors but it will require considerable effort to elevate the visitor experience and create sustainable tourism activity and benefits for communities along these routes. The Thompson Okanagan ten-year regional tourism strategy provides the strategic framework for the development of sub-regional and community tourism plans in the Thompson Okanagan Tourism Association (TOTA) service area. One of the five focus areas, the Trails strategy called for action on iconic trail development of which the Trans Canada Trail-Kettle Valley Railway (TCT-KVR) is a primary target. Therefore, TOTA, in association with its partners, has commissioned this Regional Rail Trails Tourism Strategy (the Strategy), the purpose of which is to create an export-ready tourism product. Three major phases were followed in preparing the Strategy: a) research on the current situation of the trail, market trends and best practices in rail trails development and management, b) a consultation process with stakeholders, and finally c) a strategy compilation, report writing process. A total of 225 individuals were consulted during the study. This strategy report, and its anticipated implementation, is a pilot project supported by Destination BC. A successful outcome for the pilot would open up the possibility of scaled expansion to other regions of the province with rail trail assets and initiatives. The main focus of this strategy is cycling because of its market potential and suitability for all communities along the TCT-KVR route. At the same time, off-road vehicles are active on many parts of the trail and some local clubs are contributing to trail upkeep. Conflicts between motorized and non- motorized uses are occurring, issues which are addressed in different sections throughout this report. There are recommendations for greater communication and collaboration amongst the different user groups to ensure best practices are being followed, and in addition, a recommendation for more research into off-road vehicle tourism in the Thompson Okanagan. This is seen as one way of moving discussion about tourism potential, and use management, on the TCT-KVR to a higher level, within the context of the entire trail system. CURRENT SITUATION
The Kettle Valley Railway was completed in 1915, starting in Midway and terminating in Hope, with subsequent major branch lines built to Spences Bridge and Osoyoos. The Columbia and Western Railway from Midway east to Castlegar and beyond, was also sometimes referred to as the KVR. Operations on these railways began winding down beginning in the 1960s, and with abandonment was designated the TCT-KVR in the 1990s. The KVR extends roughly 482 km from Hope to Midway but is approximately 824 km when branch lines are included.
i 10 Thompson Okanagan Regional Rail Trails Tourism Strategy
The trail is primarily Crown land, under management by different provincial agencies. Use levels are not formally documented except at Myra Canyon near Kelowna, although some communities are monitoring trail use. Major communities along the route include Christina Lake, Greenwood, Grand Forks, Midway, Rock Creek, Beaverdell/Carmi, Kelowna, Naramata, Penticton, Oliver, Osoyoos, Summerland, Princeton and Merritt. Population, visitor levels and visitor services are concentrated in the south Okanagan and diminish greatly in the eastern and western flanks of the study area. The large majority of trail use on the KVR is self-guided, but there are dozens of guide outfits and service providers catering to trail users. Visitor information can be obtained from dozens of sources from the provincial government to local visitor centres but the assemblage of materials are uncoordinated and in many cases confusing in terms of what a visitor can expect or not expect on the trail. The market potential for the trail is high. Cycling is a top-ranked trip activity among Canadian visitors to the Thompson Okanagan, moderately less so for US and international visitors. Cycle touring, especially on rail trails, is expanding internationally, with greater premiums being placed on epic adventures. The TCT-KVR is well placed to take advantage of this growth. Its combination of landscapes, favourable grade, communities, crown ownership, dedicated trail stewards and small core of export-ready tour operations provide an excellent foundation for moving forward. But there are also considerable challenges: a lack of basic services and amenities in many areas, highly variable trail surfaces and conditions, lack of connectivity in some areas, a proliferation of signage standards and quality, chronic shortages of funds to keep the trail useable, and resource use conflicts, mainly between motorized and non-motorized users. The suitability of the trail as a quality rail trail experience, and therefore its marketability, differs according to the expectations and perspective of the user or visitor. Abandoned rail lines are highly attractive recreation and transit corridors with significant potential as tourism generators. In the Thompson Okanagan this potential has only been lightly developed and it is believed with some visionary planning and more collective effort it is probable that the TCT-KVR, and other rail trails in the region, can become iconic on a world scale.
ii 11 Thompson Okanagan Regional Rail Trails Tourism Strategy
STRATEGY DIRECTION
Principles Focus Areas Goals • Use our advantages • Organization • Provincial govt support • Develop regionally • Destination • First Nations partnerships • Think & act long term •Marketing • Local partnerships • Seek out productive • Experiences • Valid baseline partnerships • Increased visitation • Grow private investment • Improved trail • Embrace the challenge
ORGANIZATION
A new entity that can be a recognized leader in rail trail development in the Thompson Okanagan would greatly facilitate implementation of this Strategy. TOTA itself does not have the mandate, structure or capacity to deal with the many different facets of implementation, although it could play a lead role. The entity would focus on creating a foundation for cooperation and collaboration in a way that encourages commitment and ownership of the trail vision. At the same time, it would empower stewards and communities who at the present time are facing an uphill battle assembling the funding and capacity to keep the rail trail a realistic vision.
Recommendations Trail advisory committee (for leadership in transition to a Trust)
First-year work plan
Local government endorsement
Rail Trails Trust
Policy brief on future TCT-KVR rail trail development
Policy brief on future rail trails development
First Nations Partnership
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MOU with First Nations
Coordinated planning with the Kootenays
Working partnership with off-road vehicle organizations DESTINATION
The weak link in creating market-ready trail experiences on the TCT-KVR is the trail itself, and without substantive improvements to the trail surface, signage and basic amenities, new investment of private capital in tour products and services will be slow in forthcoming. Multi-day, overnight trips on the TCT- KVR are the exception rather than the norm yet the raw materials are there for a marked expansion of these experiences. The major challenge of trail development is coordination amongst multiple stakeholders and funding for improvements.
Recommendations Priority trail segments
Multi-partner capital plan for medium-term trail and amenity improvements
Continuous multi-use trail between Penticton and Osoyoos
Market ready product and destination features inventory
Regional trails plan for Boundary Country
Trail management plan for Merritt sub-division
Resource assistance for communities and stewards
Friends of the KVR Program
Adopt-A-Trail Program
Regional rail trail funding protocol
Grant writer
Public fund-raising campaign
Corporate trail builder partnership program
User contributions to the trail MARKETING
Branding, Signage and Technology Solution The Rail Trails BC (RTBC) brand needs to establish what is unique, distinctive and memorable about the BC rail trail experience, to define the aura and stories that make our rail trails worth travelling to
iv 13 Thompson Okanagan Regional Rail Trails Tourism Strategy
visit. The current experience is as diverse as the rail trail network with many different user groups, stewards, communities and businesses involved. RTBC can establish in the consumer’s mind that there is a provincial rail trail network with a distinct identity that is unified at least across the Thompson Okanagan, if not the province. The three core values of the RTBC brand are heritage, nature and the human challenge. The brand symbol is reflected in the design concept. For any trail, the brand must be fully integrated with signage, one of the keys to enhancing the visitor’s experience. Clear and consistent way finding markers that present accurate information and interpretive displays will enhance the visitor’s understanding of the system. Signage also guides consumers to www.railtrailbc.ca and the technology solution. The “flag” treatment for the Rail Trail brand is distinctive, highly visible and slightly reminiscent of the rail signal system used by railways today and in the past. For major entry points and kiosks, free-standing RTBC sign posts would be installed. The third component of the brand foundation is the development of a comprehensive technology solution, a rail trail web app. This web app would be a complete rail trail guide to the region and ultimately to BC as a whole. With features such as GPS route finding and tracking, interactive maps, grade profiles, level of difficulty, among others, the app would be built with responsive design in order to produce good user experiences on all devices. It would become indispensable to trail users and create the perfect environment for establishing the RTBC brand.
Recommendations Brand development
Rail trail graphic standards manual
Signage strategy
Next steps for a technology solution
Social media program
Online Travel Agency (OTA) strategy
Gamification
Web app integration
Content management protocol
Exposure to US and European publications and websites
Early stage funding strategy
Marketing Content and Support Cycling participation and trip motivation is higher among Europeans and Americans than Canadians, but over 80% of visitors to the Thompson Okanagan are from BC and Alberta so the greatest
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opportunity to build trail visitation for the industry as a whole is among regional markets. The current market for cycling as a trip activity in the Okanagan is estimated at approximately 350,000 but with better tour opportunities, services and amenities that could triple to be more in line with overall participation rates of those who are visiting. Importantly, the likelihood of attracting new or incremental visitors (i.e. those who come to BC and the Thompson Okanagan specifically because of the trail, that is as a trip motivator) would be significantly improved with a better trail experience.
Recommendations Regional markets from BC and Alberta
Existing Canadian and international markets
Opportunities related to cycling trends and TCT-KVR trail use
Image and video bank targeted to the BC and Alberta EQ explorer types
Trail history and interpretive stories as marketing content
EQ research materials
Printed trail map
Blog and newsletter
Media relations
Media partnerships
Corporate Partnership Program EXPERIENCES
A greater selection of services, like guided and semi-guided tours, that will appeal to domestic and international markets is needed to boost visitation on the rail trails. A market-ready trail requires market-ready and export-ready operators and service businesses. The branding and technology solution will attract more operators to invest in trail experiences but TOTA can further engage industry to exceed professional standards of operations, marketing and customer service. The wine industry has blazed a similar growth path over the last two decades and can be a beacon for rail trails in the years ahead. Greater integration of First Nations cultural interpretation and experiences could be a differentiating factor for the trail.
Recommendations Canada 150 Celebration
Fastest Known Time
Product packaging and itineraries
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TOTA market research program
Operator certification program
Webinar series for trail products and experiences
Emerging and niche uses TRACKING PROGRESS
A systematic collection of data and its use for decision-making and future planning is recommended. This would involve establishing good baseline data, especially on trail use, which is severely lacking at this time. Once this is done, TOTA can measure change over time, better understand cause-effect relationships, be able to make better decisions on where resources should go, inform decision-making on marketing and industry development, and of course communicate with stakeholders and partners.
Recommendations Logic model
Trail counts
Trail surveys
Operator surveys
Visitor Centre tracking
Annual Forum
Market and trail development tracking
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Table of Contents
EXECUTIVE SUMMARY ...... I
1 INTRODUCTION...... 1 1.1 Background 1 1.2 Thompson Okanagan Regional Strategy 2 1.3 Integrating With Other Plans and Strategies 2 1.4 Purpose 6 1.5 Methodology 7 1.6 A Note on OFF-Road Recreational Vehicle Use 7 2 THE TRAIL EXPERIENCE TODAY ...... 9 2.1 Snapshot of the Current Situation 9 2.2 Strengths and Weaknesses 11 2.3 Conclusions and Observations 14 3 STRATEGY DIRECTION AND RECOMMENDATIONS ...... 17 3.1 Strategy Direction 17 3.2 Focus Areas of the Strategy 22 3.3 Organization 23 3.4 Destination 26 3.5 Marketing 35 3.6 Product and Experience Development 58 3.7 Monitoring and Evaluation 62 4 REFERENCES ...... 64 4.1 Acronyms 64 4.2 Literature Cited 64 4.3 Personal Communications 67 4.4 Community Workshop Attendees 68 APPENDIX A-IMPLEMENTATION COSTS ...... 69
APPENDIX B – BASELINE ...... 72 Study Area 72 Trail History 72 Trail Description 73 Use Levels 75 Ownership, Management and Planning 76 First Nations 81 Communities and Services 81 Tourism Businesses 82 Visitor Information and Signage 84 Thompson Okanagan Visitor Activity 87 Cycling Trends 88 Cycle Tourism in BC 89 Regional Markets 91
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APPENDIX C – MAPS ...... 94
APPENDIX D - TRAILS BEST PRACTICES ...... 104 Strong public sector support as a basis for collaboration 104 Branding 106 Storytelling and trail interpretation 109 Quality Certification and Official Partnership Programs 110 Using trails as the basis for developing new events 112 Developing and promoting a holistic product 113 The use of technology 114 Friendship Trails 118 Funding initiatives 119 Conclusion 121 APPENDIX E – ACKNOWLEDGEMENTS ...... 122
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1 INTRODUCTION
1.1 BACKGROUND
The Thompson Okanagan Tourism Association (TOTA) is a regional destination management organization (RDMO) which acts as the official representative of Destination British Columbia (DBC) in the region. The region is an established visitor destination that annually attracts 3.8 million visitors and $1.14 billion in spending. The industry however is dramatically seasonal in nature. Best known for “summer sun and fun” and to a lesser degree for “winter Champagne powder” the region experiences dramatic seasonal visitation and revenue peaks and valleys that challenge tourism operators and creates a less than optimal business environment. Outdoor recreation, soft adventure, and specifically the development of “Rail Trails” experiences represent an opportunity for stakeholders, businesses and communities of all sizes to participate in and build upon a true regional initiative, one that has great potential for expanding tourism in non- peak periods. Over the past many years the physical rail trail has been maintained through the collective efforts of individuals, stewards, community groups and all levels of government. The most urgent need has been to keep the trail functional and usable in a financially viable way while attempting to manage increasing, and often conflicting, use levels. These actors have, for the most part, worked independently of each other to the point that many good intentions and efforts lack a regional cohesion and in some cases result in duplicative or counter- productive decision-making. There is little time and attention being focused on the rail trail system as a strategic provincial asset, one that has substantial potential for international recognition and use. Currently the rail trail experience can be very rewarding in high-profile protected areas such as Myra Canyon or for those fortunate enough to enlist the services of the several tour operators serving the trail. However, the rail trail is falling well short of its capability and suitability as a world-class trail system. Market awareness is poor, regional branding and positioning non-existent, use too concentrated, user conflicts too frequent and, perhaps most importantly, few opportunities for communities and sub-regions to collaborate and break through development inertia. The bottom line is a product offering that attracts less than one percent of the potential market hiking and cycling in the Thompson Okanagan. Rail trails, in conjunction with other initiatives and tourism products, have the capability to draw both domestic and international guests outside of the traditional peak periods. For this to happen it will be absolutely necessary to elevate the visitor experience across the region through the strategic alignment of market, product and destination development efforts, ideally with the participation of all affected communities and government.
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1.2 THOMPSON OKANAGAN REGIONAL STRATEGY
The Thompson Okanagan ten-year regional tourism strategy (TOTA 2012) provides the strategic framework for the development of sub-regional and community tourism plans within the Thompson Okanagan. The work undertaken in developing the strategy was completed by TOTA on behalf of the regional tourism industry in 2012. To be effective in building the region’s tourism industry, the seven principles that underlie the strategy need to continue to shape priorities and activities moving forward. A commitment to working in strategic partnerships and gaining leverage from a more integrated approach, while respecting local autonomy and community values, will enhance the overall level of progress and mutual benefit. Formalizing a charter for sustainability and maintaining a visitor-centric perspective provides a framework of reference based on shared values for ongoing discussions on tourism planning, development and marketing.
Of the nine key issues identified in the Strategy, Access was highlighted because of its central role in moving visitors into and throughout the region. One of the five focus areas, the Trails component called for action on iconic trail development, best practices in trail management, integration with the provincial trails strategy and support for activity operators that collectively lead to new and unique experiences. “The role of trails is significant to the spectrum of opportunities available within the Thompson Okanagan and the region offers considerable potential for iconic trail development, including enhanced use of the Spirit of 2010 Trail/Kettle Valley Railway Trail through effective and enforced designation of usage.” (TOTA 2012) 1.3 INTEGRATING WITH OTHER PLANS AND STRATEGIES
This Strategy, like Regional Strategy, reflects international best practices in rail trails development while seeking to integrate with higher level tourism strategies and initiatives in order to leverage resources and complement existing programs, policies and practices (Figure 1). The Strategy has endeavoured to be consistent with local area plans and add value to community tourism planning efforts. Provincial plans were closely reviewed to identify opportunities for alignment and leverage. The Trails Strategy for British Columbia presents a call to action inviting all British Columbians to join in supporting and developing a world-class system of trails. Almost all the key elements of the Trail Strategy are reflected in this document, from vision to create a world-renowned and sustainable trail network that benefits residents and communities to core initiatives in stewardship, governance, funding, marketing and implementation. These issues and principles are not only duly reflected in this document, they are strengthened through a clear cut commitment to develop the exceptional potential of the Thompson Okanagan’s rail trails.
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The British Columbia Mountain Bike Tourism plan was also reviewed and shared principles of collaboration, enhanced funding, stewardship, capacity building at the local level and market-ready experiences are reflected in this Strategy. The plan acknowledged the development and recognition of BC rail trails as the main core of the Trans Canada Trail that could provide a new mountain bike experience, in particular cross country touring and wilderness rides. Destination BC’s Corporate Strategy (2015) sets out revenue performance measures in support of the BC Jobs Plan. Marketing objectives include enhancing BC’s world reputation, strengthening its brand, increasing brand engagement and traveller advocacy, achieving market-leader status for travel trade relationships and annually increasing visitor volumes and expenditures. The Thompson Okanagan Regional Rail Trails strategy complements the DBC’s strategy by following through on positive visitor experiences through regional and community collaboration and marketing best practices. Local trail, land use and tourism plans were also reviewed to better understand how proposed trail developments in individual communities would have implications for the TCT-KVR and where there would be opportunities for integration and alignment of strategic planning, policies and standards. Planning in neighbouring regions were also reviewed for the broader perspective related to the rapidly expanding effort on an Okanagan Valley wide trail. Tourism development plans prepared for communities and regions as part of the Community Tourism Foundations program were reviewed to identify specific references to trail development, and more generally tourism development. First Nations planning and participation in rail trails development is also anticipated. Aboriginal Tourism BC (AtBC) is implementing its strategic plan targeting aboriginal experiences and direct involvement in the tourism industry, both of which could be furthered through this Strategy. 1.4 CONTRIBUTION TO PROVINCIAL ECONOMIC DEVELOPMENT PRIORITIES
The Strategy would have implications and benefits beyond its primary purpose of building a market- ready world-class rail trail for a more competitive tourism sector. In BC, Tourism GDP is significantly higher than most other resource industries (DBC 2015a), and given the downturn in commodity markets over the last two years, it will have to play an even greater role in the future. Achieving the employment and wealth objectives set out in the BC Jobs Plan will require not just a strong provincial tourism economy but a growing one as well. A long-standing priority of senior and local government is healthy, sustainable communities. Local government in particular (for example, Penticton, Princeton, Kelowna, Summerland and Grand Forks) has recognized the transportation and health benefits associated with trails by actively investing in theses critical community assets. Finally, rail trail development can provide new opportunities for rural communities that are struggling to keep their economies healthy and sustainable. The Rural Advisory Council and programs like the BC Rural Dividend were established to foster thriving rural communities. Rail trail-related tourism has the potential to catalyse growth for many communities that might otherwise lack viable development targets.
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The Thompson Okanagan Regional Rail Trail Strategy provides the strategic framework for the development of sub-regional and community rail trails along the Trans Canada Trail within the Thompson Okanagan. The work undertaken in developing the strategy was completed by TOTA on behalf of the regional tourism industry and communities in 2015.
Figure 1 Integrating With Other Strategies and Plans
International Analysis of international rail trails – Australia, New Zealand, United United Nations World Tourism Organization States, Europe and Canada. A Practical Guide to Tourism Destination Management
Government of Canada Government of BC Canada’s Federal Tourism Strategy: Welcoming the World, October Government of BC, Gaining the Edge: A Five-year Strategy for Tourism 2011 in British Columbia 2012-2018 Canadian Tourism Commission, Tourism As Canada’s Engine For National & Provincial Government of BC, Trails Strategy for British Columbia Growth 2014-2018 Corporate Plan Tourism BC, British Columbia Mountain BikeTourism Trans Canada Trail Society Destination BC, Corporate Strategy The Trans Canada Trail together connected Strategic Plan 2012-2017
Thompson Okanagan Ten-Year Regional Tourism Strategy Sectors, Associations Aboriginal Tourism BC BC Parks and Regional The Next Phase: 2012-2017 A Five-year Myra-Bellevue Park and Myra-Bellevue Strategy for Aboriginal Cultural Tourism in Protected Area Management Direction British Columbia Statement Thompson Okanagan Regional Rail Trails Tourism Strategy 2016-2022
Regional District Okanagan Similkameen, Regional District of Community Tourism Foundations, Tourism Plans Local Government & Okanagan-Similkameen Regional Trails Master Plan − Boundary Region Community − Central Okanagan Regional District, Central Okanagan Regional Active Similkameen Region Transportation Master Plan − Naramata Central Okanagan Trails Alliance, Master Trails Plan − Summerland Local Government, Official Community Plans − Regional District Okanagan Similkameen
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1.5 PURPOSE
TOTA, in association with Destination BC (DBC), Recreation Sites and Trails BC (RSTBC), Trans Canada Trail Society (TCTS), BC Cycling Coalition (BCCC) and Cyclo Touring BC Program (CTBC) has commissioned this Thompson Okanagan Regional Rail Trails Tourism Strategy (the Strategy). The purpose of the Strategy is to assist in creating an internationally export-ready tourism product associated with the region’s rail trail network. This will help contribute to the goals of the 10-Year Regional Tourism Strategy, titled Embracing Our Potential. The centrepiece of this study is the Kettle Valley Railway (KVR) and Columbia & Western Railway (CWR) rail trails that serve as the Trans Canada Trail through the Thompson Okanagan. The Strategy is addressed the following outcomes:
a framework the enables industry to understand the value of this sector to the region;
describing guest expectations and anticipated guest experiences, how current products meet the demand, and where product gaps must be overcome;
a framework for bringing the various government organizations, communities and special interest groups together to work collectively/cohesively to ensure this product achieves export ready status;
elevating the themes in the 10-Year Regional Tourism strategy tying them into Rail Trail products and packaging;
identifying funding models to sustain trail marketing, development and maintenance over time;
ensuring the development of materials for the user groups that are accurate and consistent;
developing branding and marketing tool concepts for incorporation across all of the Thompson Okanagan regional rail trails, including logo and signage, maps, brochures, online web apps, ensuring a consistent look and feel;
demonstrating how a Rail Trail logo and signage can work in concert with existing rail trail and community signage;
advancing the concept of the use of technology as a method for education, historical and geological information, video and safety along the rail trails;
creating a product that appeals to a broader range of users through the use of online access of information, booking options and Rail Trail experiences that will promote the product in ways that will result in significant increases in the volume of hiking and cycling guests to the region both domestically and internationally; and
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developing an implementation plan that details a short-term (1-3 years) plan with goals and objectives, a mid range plan (4-6 years), and longer-term plan (7+ years) each of these to include goals and objectives as well as outlining major milestones. 1.6 METHODOLOGY
Three major phases were followed in preparing the Strategy. The research and analysis phase entailed the gathering of information about stakeholder groups, mapping resources, tourism products and services and the natural, historical and cultural features that are associated with the TCT and amenities. Where available, use data were also obtained. Other research was undertaken on trends and best practices in rail trail planning, development, management and maintenance, with a focus on tourism activities and their economic impacts. Lessons learned from different aspects of trail organizations, development, funding and marketing were identified and profiled. A consultation program consisting of eight workshops, an online survey and key informant interviews was designed to maximize stakeholder input into the identification of issue, barriers, opportunities concerning regional rail trails and more specifically the potential for developing export-ready product. An initial set of six workshops were held across the region to assist with baseline, mapping and strategic planning. Follow-up interviews and the second set of workshops were used to further develop the research findings and provide feedback on strategic direction. The workshops were attended by 122 participants, while 88 responded to the online survey. A total of 225 individuals were consulted during the study. Phase 3 consisted of preparing the draft and final Strategy reports and presenting the Plan to TOTA and its partners. In accordance with the Terms of Reference, strategy recommendations included branding, technology, signage, product development, marketing and funding. 1.7 A NOTE ON OFF-ROAD RECREATIONAL VEHICLE USE
The focus of this strategy is cycling (and to a lesser extent, other forms of non-motorized recreational travel) as a rail trail experience. The rationale is that there is a considerable research base showing the tourism and economic benefits of cycle tourism, especially in relation to the inherently attractive grades on former rail lines. The TCT-KVR has attracted considerable market interest in high-profile areas like Myra Canyon and several tour operators are hosting thousands of visitors annually for events and guided or semi-guided tours. These experiences are increasingly integrated with other tourism services whether they be wineries, accommodators, restaurants or attractions. DBC research indicates that visitors to the Thompson Okanagan have a high level of interest in cycling. All in all, the business case for building a better cycling product in the region is compelling.
It is also recognized, however, that off-road vehicles (ORV) are active on many parts of the trail and that conflicts with non-motorized users regularly occur. This notwithstanding, it is also true that there is considerable common ground among all trail users in regard to trail conditions, signage, infrastructure and the like. Like their non-motorized counterparts, ORV clubs and users are making
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substantial contributions to maintaining the trail and keeping it usable. These and other issues are addressed in different sections throughout this report and there are recommendations for greater communication and collaboration amongst user groups. Consultation discussions suggested opportunities for finding complimentary solutions to these issues are possible, especially given the clear difference in destination trail experiences each user group is seeking (ORV trail users are ultimately seeking access to wider trail systems, whereas cycle tourists desire travelling along the continuous linear corridor and favorable grade of the rail corridor itself - especially for long distance, multi-day trips between communities.)
What this report does not investigate is the tourism potential for ORVs in the Thompson Okanagan and how it might affect development on the TCT-KVR. It is believed the large majority of ORV use on the trail is by residents, with an unknown level of tourist use. Provincial ORV organizations and local ATV clubs are promoting the TCT-KVR as a motorized corridor. One way to increase collaboration at the community level is to take a much broader view of how the entire trail system might function in supporting all uses in ways that make the best use of scarce resources, infrastructure and volunteerism. It is believed further research and planning into exploiting ORV tourism opportunities would take the current lens off the TCT-KVR and generate a broader discussion on the potential for the ORV trail systems as a whole. A recommendation to this effect has been made in the strategy.
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2 THE TRAIL EXPERIENCE TODAY
2.1 SNAPSHOT OF THE CURRENT SITUATION
A baseline of the TCT-KVR, including history, description of major segments, use levels, land use context, communities, services, visitor information, tourism activity in the Thompson Okanagan, cycling trends and market profiles, is presented in Appendix B. The following paragraphs provide a synopsis of the baseline. The original KVR was completed in 1915, starting in Hope and terminating in Midway, but over time branch lines connected to Spences Bridge (via Merritt) and Osoyoos. The CWR from Midway east to Castlegar was also sometimes referred to as the KVR. Operations on these railways began winding down beginning in the 1960s. The majority of the KVR’s and CWR’s original routes have been converted to a multiple-use recreation trail, which comprise a portion of the BC section of the TCT. A map of the KVR and its associated rail trail sections is shown in Figure 1. The Kettle Valley Railway section of the Trans Canada Trail extends roughly 482 km from Hope to Midway. When connecting sub-division rail trails are included, the trail length extends beyond 824 km. There is very little formal counting of trail use, except for the Myra Canyon section at Myra and at Ruth. Visitation since 2009 has fluctuated between 30,000 and 40,000, with 2008 attendance of 51,000 considered an anomaly because it market the reopening of the trail after the 2003 fires. The trail is primarily Crown land, under management by different provincial agencies. The majority of the right-of-way is managed by the Ministry of Forests, Lands and Natural Resource Operations (FLNRO) under Section 56 of the Forest and Range Practices Act (FRPA). FLNRO has negotiated partnership agreements with local governments and stewardship groups to help it meet its conservation and recreation objectives for the trail. The TCT-KVR passes through First Nations traditional territories including, in the Merritt area, Lower Nicola, Schakan, Cook’s Ferry, Nooaitch and Coldwater, in the Similkameen, Upper Similkameen and Lower Similkameen, and in the Okanagan, Osoyoos, Penticton and Westbank. It also lies adjacent to many reserves, particularly in the south Okanagan and between Merritt and Spences Bridge. The major communities associated with the trail, from east to west, are Christina Lake, Greenwood, Grand Forks, Midway, Rock Creek, Kelowna, Naramata, Penticton, Oliver, Osoyoos, Summerland, Princeton and Merritt. Hope, which marks the western terminus of the KVR is outside the TOTA service area. In 2014, the regional population was approximately 277,000 with two-thirds of this clustered in the Kelowna area. The western and eastern flanks of the KVR are sparsely populated. Similarly, the availability of infrastructure and services that cater to visitors and trail users is highly concentrated in the Okanagan sub-region and diminishes in the Similkameen and Boundary sub-regions. However, forest and recreation sites and other trail networks proliferate in the remote areas.
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Figure 2 Kettle Valley Railway and Connecting Rail Trails
Source: Langford (2015)
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The large majority of trail use on the KVR is self-guided, but there are dozens of guide outfits and service providers catering to trail users. Potential visitors to the Thompson Okanagan can obtain information on the TCT-KVR in digital and hardcopy format from a variety of sources, such as the provincial government, local government, visitor centres, trail organizations, stewardship and community groups, tour operators and individual businesses. Brand, website, mapping and visitor guide materials are highly varied between communities along the TCT-KVR route and there is little coordination of information. The RDOS and Trails BC provide the most comprehensive sources of trail information through their respective websites. Major traveller information websites like www.britishcolumbia.com and HelloBC do not feature the TCT-KVR as a single trail experience and do not provide map or trail-specific information. In 2012, the majority of overnight travellers to the Thompson Okanagan were BC residents (70%), followed by Canadians from the rest of Canada (17%), US travellers (6%) and other international travellers at 7%. Together, BC and Alberta residents account for 83% of all visitors to the Thompson Okanagan and 72% of total spending. Approximately half of all visitors to the Thompson Okanagan stay with friends and family, but interestingly the rate is higher for US and particularly international visitors than their Canadian counterparts. In terms of activities undertaken in the region, BC residents and other Canadians tend to participate primarily in outdoor activities, while US residents and international visitors prefer a mix of cultural and outdoor activities. Cycling is a top-ranked trip activity among Canadian visitors to the Thompson Okanagan, less so for US and international visitors. Nevertheless, cycling as a destination activity is growing in North American and European markets, spurred on by a global network of rail trails and many related services and events. In BC, cycle tourism is attracting a diversity of age groups who tend to be well educated and have above-average incomes. BC is seen as an appealing cycling destination by North American visitors to this province. Explorer Quotient market profiles for BC and Alberta indicate a high level of interest in cycle tourism. Approximately two-thirds of BC residents, which represent approximately 70% of all visitors to the Thompson Okanagan, fall into four EQ types, Free Spirits, Authentic Experiencers, Rejuvenators and Cultural Explorers. The profile of Alberta households is a bit different. Two of the top four types in Alberta, Authentic Experiencers and Free Spirits, also rank in the top four in BC, but No Hassle Travellers and Gentle Explorers, which make up close to 40% of all Alberta households, in BC only account for around 15% of households. 2.2 STRENGTHS AND WEAKNESSES
The experience of residents and visitors who use the TCT-KVR is a diverse one because of the changing landscapes, widely varying trail conditions and availability of visitor services and amenities. Some of the strengths and weaknesses that characterize the trail are addressed in the paragraphs below, based on feedback during the workshops, online survey and interviews, as well insights gleaned from the literature review.
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The TCT-KVR has six major strengths:
Natural Assets – The southern portions of the Thompson Okanagan that the TCT transects has an exceptional diversity of landscapes and elevations that if not unique are at least special in the international context. The ecological diversity of coastal rainforest, desert, parkland and alpine, is certainly nationally significant, if not internationally. The climate is dry in much of the region, especially in the summer, which takes much of the weather risk out of the trail experience. Wilderness areas are close by and accessible even in the major urban areas like Penticton.
Trail Features– The TCT-KVR is a rail trail with grades generally in the range of 2% or less, which means it is accessible to a full range of users, including families, youth and seniors. The past and living history of the KVR, not just the engineering feats which were extraordinary in their day but the bridges, tunnels and trestles that exist today, are of great interest to visitors. With proximity to several major communities and highways, access to the trail is relatively good and safe.
Communities - Community assets includes the history and cultural diversity, not just First Nations, which is of particular interest for overseas markets, but settlement and industrial (mining, forestry, agriculture) components as well. In the Okanagan, the connection between the trail to the winery and orchard industries is a strong one, while agri-tourism products are present along the trail in the Okanagan and Boundary.
Crown Ownership – The trail, since it was purchased by the province from CP Rail, is crown land and therefore represents an uninterrupted right of way available for public use under one management regime.
Trail Stewards - There are established stewardship groups in most communities and agreements have been reached with the Province for trail care and maintenance. This has promoted “ownership” of the trail and a good foundation for improvements and upgrading.
Business Development – The TCT-KVR is being actively promoted as a destination experience to domestic and international markets. There are several experienced tour operators and many more accommodators and other businesses offering services to trail users. HelloBC, visitor centres, museums, the province and local government make maps and related trail information available to the public and visitors. Weaknesses include the following:
Trail Amenities – Basic amenities along the trail, including toilets, potable water, rustic camping and parking, are sorely lacking along many trail segments, notably in the Boundary and the Princeton-Merritt areas.
Trail Conditions – Most user groups, motorized and non-motorized, acknowledge that the trail surface and conditions range from the poor to very poor with few sections hardened
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sufficiently for cycling or even hiking. Sand and gravel surfaces, rutting, washouts, landslides, ponding/puddling are common. Use of the trail by major industries such as logging is also contributing to poor conditions.
Trail Connectivity - The trail is not contiguous and can be very disjointed. Portions around Vaseux Lake, Penticton Indian Band reserve and between Spences Bridge and Merritt are particularly problematic. The trail is roadway or FSR in parts, while the former rail bed has been lost or removed in others. Some landowners are blocking access and conflicts between farmers and trail users are well documented.
Signage – Signage on the TCT-KVR is lacking, and distance, way finding and interpretive information is not being presented in a consistent manner. This has a direct and immediate impact on the trail experience, especially if users are not prepared for the conditions they are likely to encounter.
Trail Maintenance – Trail maintenance and the resources available for it is not sufficient to maintain or improve the trail as a point-to-point, multi-day cycling route, although there are certainly some sections that are well maintained and bear significant volumes of traffic. Although the Province has reached out to communities and stewards with trail partnerships, there is still a mix of mandates, capabilities and resources that make connectivity a challenge. Limited access to funding is a chronic issue for all areas. Some stewards have also indicated that over time the local commitment to developing the trail according to its original vision is eroding due the increase in motorized uses and its adverse effects on trail conditions, notably the surface.
Trail Management and Use Conflicts – The management of the trail is inconsistent, with little to no monitoring, frequent occurrences of illegal use and many instances of anti-social behaviour (e.g. vandalism, physical confrontations between motorized and non-motorized users). In some communities (though not all), trail management is non-existent and relations between user groups can be adversarial. Safety issues related to potential collisions are a concern. It is recognized that this situation is not unique in the provincial context—land use conflicts occur in almost all areas of the province between all sorts of user groups, some representing residents and others tourists. Feedback during the consultation program indicated that lack of designated and regulated uses is a major problem for tourism development.
Perceptions of Allowed Use – One of the major weaknesses identified at the workshops was that some visitors have a very clear perception of a rail trail as non-motorized corridor. Many maps are reinforcing this perception. Except for select sections in parks and municipal areas, there is a good chance that a user on the TCT-KVR will encounter motorized users. Not only is this fact not being communicated to many cyclists and hikers but there is very little cooperative work occurring on shared use management, for example, for infrastructure,
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spatial and temporal separation strategies and trail behavior protocols (e.g. education, courtesy, safety, reporting).
Stewardship Burnout – The number and volume of trail stewards are at risk of declining. The decision by RSTBC to transition existing stewardship agreements to RDOS has filled some of this gap, but increasing motorized use and the complexity of revised stewardship agreements has been frustrating stewards who may not continue in their role.
Cell Services – Cell service is good on those segments of the trail near settled areas and on major roads/highways but it does not exist at all for some parts of the Boundary and in major portions of the Princeton and Merritt areas. Technology solutions are available for the pre- loading of trail information the implications for public safety, especially 911 services, is more problematic. There is very little documentation of emergency situations on the trail, but there are anecdotes of trail collisions for example that may be complicated by the lack of cell services.
Visitor Expectations – Almost every workshop indicated that many trail users have a weak understanding of the experience they are likely to encounter on the trail and that the final delivery can fall short of expectations. Interestingly, that does not appear to be the case on all segments. Trip Advisor shows that Myra Canyon Park (non-motorized use only) is ranked 17 of 2,384 things to do in BC and 1 of 114 things to do in Kelowna. It has earned a certificate of excellence for consistently earning great reviews from travellers. There are very few mentions or reviews of other sections of the TCT-KVR on Trip Advisor.
Visitor Services – Related to several of the above points, the information available to visitors who are interested in using the TCT-KVR varies widely by community and sub-region and, importantly, does not portray a unified trail experience. Even the name of the trail is inconsistent, sometimes being referred to as the TCT, other times the KVR and occasionally they are used together. There is little to no branding associated with the trail in the publications that were reviewed for the Baseline. There were a wide variety of maps available, some digital some only in hard copy, but with no consistent terminology, branding or presentation. Many visitors would have no idea of the length of the trail or opportunities along the way. The Kettle Valley Express Adventure Travel Guide to South Central BC appears to be the only end-to-end hard copy guide of the KVR within the Thompson Okanagan. 2.3 CONCLUSIONS AND OBSERVATIONS
The TCT-KVR has exceptional capability given its length, grade, landscape diversity, mix of bio- geoclimatic zones, heritage assets, and proximity to strategically located towns and cities and the services they provide to trail users.
The suitability of the trail as a quality rail trail experience, and therefore its marketability, differs according to the expectations and perspective of the user or visitor.
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• Where trail conditions are well managed, predictable and safe, such as Myra Canyon, use levels and visitation are high, as are the apparent levels of satisfaction by visitors. From an analytical standpoint, this revealed preference makes sense and suggests that the future potential for the trail will be greatest near major communities, in protected areas and where there are no allowances for motorized uses. • Where trail conditions are more challenging, especially in the western sections (Similkameen, Coquihalla and Merritt) there is still a market for the trail and its potential should not be ignored. Epic adventures are possible on the remoter sections of the TCT- KVR and current conditions do not represent insurmountable barriers for those fully prepared and armed with the appropriate information, mapping and interpretive resources. This may represent a minority of users but the wilder side of the TCT-KVR can be an equally if not more compelling experience than the safer confines of the central Okanagan. Rather than viewing these areas as a problem to be solved, it should be marketed as an opportunity waiting.
Tour operators and guides have the ability to educate, prepare, plan for and properly outfit their guests for trail use, and therefore are able to manage and in most cases mitigate risk. However, most trail visitors are self or semi-guided and do not benefit from this level of service. This places high level of importance on getting relevant, accurate and up-to-date information to all trail users, something that is not happening right now.
The TCT-KVR is promoted through a mix of publications and websites, within and outside the region, with a great variety of trail terminology and classifications, mapping information, visitor information, marketing materials and brand applications. A search of HelloBC for Kettle Valley Trail, Kettle Valley Rail Trail and Trans Canada Trail leads to individual community landing pages. There is no unified online presence for the trail in the Thompson Okanagan.
All of the above notwithstanding, the trail is in poorer shape today than it was 23 years ago when it was first designated as the TCT. It requires urgent attention so it does not degrade further. Even epic seekers prefer a contiguous trail with a navigable surface and access to basic necessities such as water, waste facilities, and rustic accommodation.
The issue of motorized use on the TCT-KVR has two distinct dimensions:
• Motorized use of the trail is very hard on the surface and raises the costs of care and maintenance. As far as maintaining a consistent visitor experience for cyclists on the trail, this is arguably the more important issue. • Conflicts between motorized and non-motorized trail users are well documented in the literature. Motorized users wish to have the trail open to all recreation uses (i.e. mixed use), because they use it as an access corridor linking to other trail systems and play areas. It should be recognized, however, that experiences for motorized and non-motorized users on a motorized trail are asymmetric. A motorized user will tolerate hikers and cyclists because they have little effect on his use. For the cyclist, hiker or even x-country skier a
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motorized trail is akin to a roadway with its attendant inconveniences and risks. In fact, one of the major reasons for seeking out trails is to avoid road and highway conditions. As with many similar land use conflicts, effects are rarely absolute and will vary according to the nature, frequency and response to the interactions. Looking at the broader rail trail perspective in North America and Europe, however, there is very strong link between high non-motorized use levels and absence of motorized uses.
If motorized users use the trail for access to other activity areas rather than as a destination feature itself, as many cyclists or hikers would, then this suggests that there may be interim management solutions that could avoid, minimize and mitigate conflicts.
In summary, abandoned rail corridors are much more than local amenities, they are highly attractive non-motorized recreation corridors that have proved significant tourism generators in many parts of the world. Clearly, most jurisdictions consider the benefits to outweigh the costs and have pursued their trail systems with vision, vigour and belief. In the Thompson Okanagan, the opportunities for a world-class rail trails system are exceptional, but only if the asset is perceived and cared for as it should be—irreplaceable.
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3 STRATEGY DIRECTION AND RECOMMENDATIONS
3.1 STRATEGY DIRECTION
On December 1, 2015, TOTA staff and members of the Experiences Advisory Committee gathered in Kelowna for a TCT-KVR strategic planning session. The purpose of the session was to review baseline information and results of the community consultation (i.e. workshops and interviews), discuss a future vision for the trail, set out key goals and identify marketing, destination and product development strategies that would support the study objective of building an export-ready rail trail experience. The following principle, vision and goal statements were distilled from the research and consultation process.
3.1.1 The TCT-KVR and the Rail Trails Context Part of the Terms of Reference for this study was to devise a brand and signage concept, and technology solution, that would contribute to the TCT-KVR as a market-ready product and visitor experience. Very soon into the research phase it became apparent that a strict focus on the TCT-KVR for these terms would be to ignore the much broader regional context of TOTA’s and the province’s expanding rail trail system. This would likely compromise the applicability of this study’s outputs if implications for trails other than the TCT-KVR had not been considered. Discussions with key stakeholders from the Shuswap to the Kootenays uncovered an almost identical set of issues and challenges and more importantly, opportunities, for developing a rail trail network that would have few equals on the world stage. It was believed that the rapidly evolving valley-wide trail initiative in the Okanagan and the expanding rail trail network in the neighbouring Kootenays would eventually give rise to questions about why several competing trail initiatives were, if not working at cross purposes, at least not sharing intelligence and planning. For example, would it make sense to consider unified branding, common signage standards and shared technology that took the best advantage of a rail trail system (both within and outside TOTA boundaries) that is essentially contiguous and inter- linked? Logic would seem to say so. The decision was therefore made by the study team to fully consider the implications, costs and benefits of a broader regional approach to branding, signage and technology with an eye to creating the very best rail trail experience possible. Branding, signage and technology are seen here as transformative because they have yet to be developed or refined for the TCT-KVR or for other rail trails in the Thompson Okanagan and beyond. They have the potential to represent a value-added proposition that communities, stakeholders and businesses can buy into and benefit from, essential for creating that consistent, expanded, market and export-ready experience that is a core objective of this Strategy. It is also this study’s perspective that the challenge be described within a broader regional and provincial framework now rather than later when it becomes even more obvious that TCT-KVR development is only a part of a much larger rail trails opportunity.
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3.1.2 Implementation Role This document represents a strategic plan, which comprises a direction, a prescribed set of actions to achieve that direction, the allocation of resources to support the actions and the identification of roles and responsibilities for implementation. This last element, roles and responsibilities, is typically structured around the organization preparing the strategy. Thus, the strategy would align with the personnel, resources and other assets of the lead organization. However, the Regional Rail Trail Strategy is more than what TOTA itself can do, it is about supporting and in many ways influencing multiple courses of action among many different organizations who have a stake in rail trail development. This context complicates the strategic planning process because these organizations are not bound to implementation of the Strategy, other than through the commitments they may have made in its preparation. The success of the Strategy is therefore contingent on the uncertain participation, support and indeed ownership of both the direction and underlying recommendations that are meant to achieve the export-ready rail trail experience in the Thompson Okanagan. This uncertainty will increase over time due to changes in staff, elected officials, and internal planning priorities. A legitimate concern of this Strategy is how to plan for and manage multiple partners and the related uncertainty while maintaining focus on the ultimate goal of a successful rail trail across the region. It is also noted that as this Strategy is implemented, it could be scaled to include other regions with rail trail assets, including the Kootenays and Vancouver Island.
3.1.3 Principles of the Strategy Strategy principles can be meaningful if they clearly articulate how TOTA and its partners needs to function in the future. The purpose of the Strategy is to change the trajectory of the trail as a visitor experience—most feedback to date indicates the status quo as a rapidly deteriorating asset whose experience for most users is worse today than it was 20 years ago. No action means a worse trail in the future than today. Informed choices about what needs to be done differently can put the trail on a different course that realizes its potential as prized destination experience. The following five principles help frame and bind the Strategy recommendations to follow.
Use our advantages. By most accounts, the KVR (including its branch lines) has exceptional if not outstanding qualities as a rail trail that are very difficult to match worldwide. The total length is twice that of the longest rail trail in the US (Katy) and close to five times the famous Otago rail trail in New Zealand. The eco-system, landscape and elevation variety is something that British Columbians tend to take for granted but which many visitors, particularly from Europe, find extraordinary. To not use this relatively raw but irreplaceable resource for its highest and best use as a tourism and economic generator is a disservice to the province and the legacy of the railway itself.
Develop regionally. The TCT-KVR represents a large geographic area with at least four distinct sub-regions, Boundary, Okanagan, Similkameen and Nicola. The Okanagan has the majority of the population, services and visitation and opportunities for developing market-
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ready experiences on the trail. The other sub-regions have much greater challenges because of more remote conditions and less tourism activity. But, the original vision of the trail can only be achieved by encouraging and supporting development in all sub-regions where there is grassroots interest and involvement.
Think and act long term. The physical length and nature of the TCT-KVR means the amount of planning, coordination, management and investment needed to actually create market- ready experiences in all sub-regions and all communities is considerable and will take years, if not decades, to realize. All initiatives, programs and actions should be guided by their contribution to the long term, cumulative vision of the trail.
Seek out productive partnerships. As a regional DMO, TOTA has a limited mandate and few internal resources for implementing many aspects of this Strategy. It must therefore identify and pursue partnerships with senior government, local government, industry, community groups and other stakeholders as a way of enhancing implementation capacity.
Grow private investment. Few would argue that a successful trail is one that is used and therefore valued by those who are using it. The more the trail is used by visitors, the more likely it is to attract private capital for the creation of new services and experiences that create beneficial impacts for communities.
Embrace the challenge. The TCT-KVR is an exceptional asset but one that is highly variable in conditions, landscapes, communities and services. It is unlikely the trail will ever match the paved template of much of Europe and the Route Verte in Quebec, nor should it be. It is necessary to upgrade and improve the trail, but it is equally apparent that it can still become a marketable destination if it is positioned and promoted properly. The Okanagan’s preferred EQ targets embrace challenges so there is no doubt that increased visitation is possible, providing government, communities and industry offer that challenge in meaningful, memorable way.
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3.1.4 Vision for the Trail A vision is no more than a statement of a future expected state of the organization, project or program. It provides long-term direction, shapes goal development provides a sense of purposeful action. It is a focal point and beacon for where TOTA and its partners are going with the rail trail initiative. The following vision elements emerged during the December 1, 2015 planning session in Kelowna.
●●●
“The rail trail experience in the Thompson Okanagan is world-class, offering multiple-day, long distance tours for the adventurer as well as shorter excursions suitable for the average visitor. It connects a fascinating mix of communities, physical landscapes, railway and settlement history, and First Nations culture that make this a unique rail trail experience. The trail is integrated with other visitor activities and destination attractions and visitors are able to tailor their trips to an endless mixture of outdoor recreation, nature observation, cultural, culinary, winery and event options. The trail has become a must-see attraction for Thompson
Okanagan visitors and is regularly cited as a don’t miss rail trail experience.”
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3.1.5 Goals for the Trail The Strategy has six over-arching goals that provide direction for strategic initiatives, actions and the allocation of resources. Progress on these goals can be made over the next three to five years, with achievement of the vision statement measured over the next 20 years. 1) Provincial government commitment to the original spirit and intent of the Trans Canada Trail. The large majority of the TCT-KVR is crown land and thus the responsibility of the provincial government. Currently, RSTBC is Best Practice Route Verte the major player but other ministries have jurisdiction as well. Î p 106 As it currently stands, the trail is a remarkable and rare asset but one that is gradually diminishing because of insufficient maintenance, unsustainable uses in some areas and a lack of a cohesive approach to future development. Good progress is being made as RSTBC negotiates stewardship agreements along the trail, but higher levels of government must support the original vision of the TCT for transition from the status quo. 2) First Nations support and participation. The genuine, active involvement of First Nations in the development of the trail would be a game-changer and create mutual benefits. It has the potential to enhance linkages to First Nations tourism products and services, while increased interpretation of aboriginal culture and history would clearly differentiate the trail from competitors in Europe and the US and accentuate the authenticity of the KVR (and other rail trail) stories. 3) Double the number of community partnerships. Good progress is being made in places like Grand Forks, Christina Lake, Summerland and Penticton/Naramata where stewardship groups and local government have endeavoured to improve the trail for residents and visitors. More partnerships are needed so local resources can be effectively leverage, and be leveraged by, provincial resources. 4) A reliable and accurate baseline of use and visitation. Baseline data on the number of users and visitors is lacking and outside of the Myra-Bellevue area pretty well absent. It will be difficult to evaluate progress on the trail unless the appropriate metrics and data sources are in place. 5) Double visitation in five years, with increased proportions of non-resident visitors, multi-day stays and distribution across the region. Visitation is the impetus for tourism spending and the economic benefits that come with it. It is possible to generate incremental tourism impacts by increasing per capital or per party spending even without an increased in the number of visitors, but it would appear that in comparison to other rail trails, the major gains to be made in the Thompson Okanagan are in the absolute number of people on the trail. 6) Develop 150 kms of multi-use trail with an emphasis on contiguous segments. At this time, approximately 50 kms of rail trail have a relatively “reliable” visitor experience because of paved or hardened surfaces that exclude motorized activities. Without expansion of these core segments, attracting more users, especially families and older age groups that represent the bulk of the existing rail trail market, will be challenging. Daily distances on rail trail tours can
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range from 30 to 45 kms, so it is clear that any aspirations of multi-day stays will have to include many more kms of predictable, reliable, safe and interesting segments than is now the case. Extending the rail trail season beyond the peak summer period is also dependent on improved trail and surface conditions. 3.2 FOCUS AREAS OF THE STRATEGY
The strategy recommendations are divided into five major focus areas, each of which directly supports the achievement of the Strategy vision and goals. These relationships will help provide a framework for management of the plan, evaluation and reporting.
Figure 3 Focus areas and goals
Organization
Destination
Prov First Local Valid Increased Improved Marketing Govt. Nations Partner- Baseline Visitation Trail Support Support ships
Experiences
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3.3 ORGANIZATION
Key Issues The goal of creating a market-ready, world-class rail trail is contingent on a realistic organizational model that promotes a shared vision and spells out who is responsible for the different aspects of development. At the moment, there are relationships among many different government agencies, local government and stewards that manage to keep the trail useable and available to the public, but no entity vested with a vision for higher-level tourism development. In other jurisdictions the pathway for rail trails development vary widely according to the legal and land use context. In the US, the Rails- to-Trails Conservancy assists communities in securing federal money for planning and constructing rail trails through the specific support of the National Trail Systems Act. In New Zealand and Australia rail reserves were used to convert former rail lines back to Crown land and trail use. In Europe, the situation is much different in that cycle development and touring takes advantage of centuries of public pathways. A common theme for all successful rail trails, however, is an organizational symmetry that brings together the many different actors responsible for physical, product and market aspects of trail development in a coordinate fashion. The trails described as Best Practices in this report, from the Vennbahn to the New Zealand Cycle Trail reflect this characteristic unity of vision and action.
Recommended Actions 1. Trail advisory committee. As a regional DMO, TOTA has no direct pathway or role for engaging in the physical aspects of trail and infrastructure development. Provincial and local governments that own and manage the trail itself, adjoining lands and related infrastructure bear this responsibility. TOTA does of course work closely with industry and government on creating trail-related visitor experiences so indirectly it has a stake in how lands and resources are managed and developed over time. A Trail Advisory Committee (TAC) should be established, along with a terms of reference, more generally to oversee the implementation of this plan, but also specifically to advocate for legislative, policy and program support from government that will support the trail vision. It is anticipated that the TAC would eventually be absorbed into the Trust once it is established (see item 4 below). Representation by RSTBC, DBC, Trails BC, regional districts, communities, stewards and operators is recommended.
2. First-year work plan. Once the TAC has been established it will be necessary to immediately produce a first-year work plan that focuses on ramping up for implementation of major initiatives outlined in this Strategy. Recommended content is as follows:
• Quarterly meeting schedule for the TAC • An Annual Rail Trails Forum to be held in conjunction with the TOTA AGM and Tourism Summit (see strategy 58) • Temporary website for organizing and charting implementation • Development of a communications database and integration with TOTA’s customer relationship management (CRM) system
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• Inventories of exceptional experiences, export-ready products and operators
3. Local government endorsement. TOTA, through the advisory committee, should seek the endorsement of municipalities and regional districts who will be future partners for many aspects of this Strategy. Presentation to councils and boards highlighting and explaining the Strategy would precede a request for a resolution of support.
4. Rails Trails Trust. A rail trails trust or foundation, similar to the TCT Foundation or the Bruce Trails Conservancy (BTC), should be explored as a new, lead organization for rail trails development in the Thompson Okanagan. The BCT non-profit, charitable model, in which numerous community groups and stewards already involved in trail development combined to create the trust, appears well suited for the TCT-KVR context. BCT has partnerships with nine separate trail clubs in communities along its route. By-laws state that although membership in an affiliated trail club is not required to be a member of the BTC, membership in the BTC is required to be a member of a BCT club. A Rail Trails trust for the Thompson Okanagan would pursue a broader mandate than the BCT, including promoting the TCT-KVR as a destination attraction. Membership would be open to any individual, family or organization in Canada but the focus would be on communities, stewards and businesses with a direct stake in the trail today. The main advantages of the trust or foundation model is its inclusiveness and openness, non-profit status, fund raising capability, continuity of membership and limited liability. It can also be scaled to eventually cover trails other than the KVR so there is overarching effort at regional rail trail development. TOTA can prepare a brief business plan for the trust that includes the mandate, vision and other bylaw components, while incorporating other elements of this Strategy as needed. The TAC would be replaced or realigned with the trust once established. Alternatively, in the interests of expediency and cost, the Trust could be established as a subsidiary of TOTA, which itself is a non-profit. One element of the trust or foundation that needs to be determined is the legal relationship with the Province. There should be some formalized agreement that vests the new organization with some authority either at the stewardship or marketing level.
5. Policy brief on future TCT-KVR rail trail development. A clear policy outlining expectations for the physical trail should be prepared and distributed to all levels of government. The objective would be to increase and effectively deploy resources that would be in keeping with the market potential of the trail. Rail trail research shows that there is a direct and positive correlation between rail trail investment and benefits to local businesses, residents and communities. At this time the KVR is a world-class asset but it will not become a world-class attraction without proper capital investment. The policy brief would articulate and underline a future vision, while emphasizing the roles of all levels of government. It would be used to guide advocacy and carry out communications activities.
6. Policy brief on future rail trails development. Another important aspect of the policy would be expectations and coordination with the rapidly evolving Okanagan Valley-wide trail initiative and the evolving rail trail in the Shuswap/North Okanagan. This involves rail trails
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between Vernon and Kelowna and proposed new trails linking West Kelowna to Summerland. The southern reaches of this network would of course include major portions of the TCT-KVR and thus directly interact with this strategy. Acquisition, decommissioning and development of portions of the Kelowna Pacific Railway (CN) corridor (see Figure 17) and ongoing discussions for the acquisition of the CP corridor between Sicamous and Armstrong present exceptional opportunities to create a vast rail trail system that would potentially exceed 1,000 km. Due to the relative absence of motorized use conflicts, and the active participation of major cities like Vernon and Kelowna, a north-south rail trail could be a reality within the foreseeable future. The synergies among these trails is apparent, but there are also likely to be growing pains, such as increasing inter-community competition for already scarce trail resources. The policy would provide guidance for TOTA and its partners that supports the optimization of trail improvements with the greatest potential for rail trail experiences. It would also help local government partners coordinate and scale their own planning and management. It is also recommended this policy be developed in cooperation with the provincial government as a preliminary step toward a comparable provincial policy.
7. First Nations Partnership. Now common in BC, with the Songhees and Esquimalt nations involvement in the E&N rail trail on Vancouver Island and the Splatsin Nation, which is in the process of negotiating the purchase of the abandoned CP Rail line between Sicamous and Armstrong as an active rail trail corridor. The Sinixt Nation works closely with the Slocan Valley Rail Trail Society on the Columbia and Kootenay rail trail. The North Shore Spirit Trail was a partnership between Squamish Nation and the District of North Vancouver. There will be opportunities to partner with First Nations on aspects of trail development and interpretation, for the TCT-KVR as well as other rail trails in the Thompson Okanagan as they develop. Direct First Nations involvement in the Trail Advisory Committee and Trust is highly recommended. TOTA is also collaborating with AtBC through a First Nations liaison and there are plans to develop an aboriginal tourism strategy for the Thompson Okanagan. This presents an ideal opportunity to garner greater First Nations involvement in rail trails products and experiences.
8. Memorandum of understanding (MOU) with First Nations regarding participation in and support for the trail. The Penticton and Osoyoos Nations are noted here for particular attention because of the proximity of their citizens, lands and assets to the TCT-KVR in the south Okanagan. An MOU with the Okanagan Nation Alliance is also recommended to represent other traditional territories in the south, while a third MOU is recommended to represent First Nations in the north. These agreements would touch on issues related to trail development, land use, business development and heritage and cultural interpretation. First Nations could be beneficiaries, particularly in terms of business development opportunities for catering to trail visitors, either new enterprises of packaging existing services that tap into the emerging trail market.
9. Coordinated planning with the Kootenays. As noted in the baseline, there are high- potential rail trail assets in the Kootenay region beyond the eastern portion of the TCT-KVR
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(including the CWR) that terminates in Castlegar. Coordinated planning with Kootenay trail stakeholders should explore the appetite for scaling this Strategy to that region.
10. Working partnership with off-road vehicle organizations. TOTA should support the Province’s stated commitment to establish the TCT-KVR as a multi-use, non-motorized (except snowmobiling) trail. This is the best way to minimize trail use conflicts and ensure a rail trail experience that is within the expectations of the market place. Few rail trails mix motorized and non-motorized modes and certainly the successful, high-use trails in the US, Europe and Australia/New Zealand exclude motorized uses. The Province has been unable to adequately support or enforce this model, even though it remains the objective of the TCT. However, the Strategy must also recognize the realities of existing use, anticipate ongoing motorized uses on many sections of the trail, and seek an interim management model that is acceptable if not actively supported by motorized off-road users. The workshops indicated that off-road motorized users are dealing many of the same issues as non-motorized users (e.g. poor trail surfaces, missing trail sections, barred access, lack of infrastructure) and are equally squeezed on accessing funds to keep the trail navigable. The workshops also indicated that there were opportunities for physically separating use on the trail (i.e. parallel trail sections), sharing crossings and sharing facilities such as water, waste disposal and campgrounds. Such a model of course requires collaboration among groups at the local and higher levels. This has happened in the Shuswap and in the ongoing development of the Kettle Valley Heritage trail. TOTA can work with local ATV and ORV clubs, as well as the Quad Riders ATV Association of BC (ATVBC) and the BC Off Road Motorcycle Association (BCORMA), to identify the following:
• TCT-KVR sections that are core experiences or critical access for motorized users; • Development strategies on these sections that adequately separate motorized and non- motorized users within the same right-of-way or corridor (where p=possible); and Management strategies that promote and encourage trail etiquette that brings all users to a common understanding of how mixed-use trails are supposed to function. Also, as in noted in the Section 1.6 further research into ORV tourism in the Thompson Okanagan should be considered by TOTA. 3.4 DESTINATION
3.4.1 Trail Development
Key Issues Discussions with government, communities, stewardship groups and the tourism operators has clearly identified trail conditions as the major limiting factor in creating a market-ready TCT-KVR rail trail. The roughly 700 kilometres of access, which includes branch lines, is a world scale rail trail with exceptional natural features and good potential as a destination attraction for cyclists and hikers. This potential is underlined by the low grade and preserved right-of-way, which is why so many jurisdictions have targeted rail trails for non-motorized trail development and use.
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But natural assets and features are not the sole or even leading determinants of a competitive rail trail; if they were then the TCT-KVR would be hosting many more users than is presently the case. It is true that some operators have developed successful tour businesses on the trail, but the majority are day trips rather than multi-day, overnight tours, and they account for only a fraction of total visitors. What determines the trail experience is the combined effect of the trail, its surroundings, the human interactions and access to services. It is apparent, based on feedback from operators and reviews of OTR sites such as Trip Advisor, that the TCT-KVR could be providing a much more consistent and reliable experience that is in keeping with the expectations of visitors. Greater interpretation of cultural, historical and First Nations stories is greatly needed. Importantly, it was clearly noted in the workshops and the survey that lack of basic amenities was adversely affecting the experience of those visitors who were not adequately informed and in some cases not adequately prepared for the conditions they encountered. This is partly an issue of equipping visitors with the right information before and during their trip, but it is also a matter of being able to meet the minimum requirements (let alone best practices) for what most consumers understand as being a rail trail experience. It is no surprise that that part of the TCT-KVR with the highest use levels, Myra Canyon, happens to occur in a provincial park where these elements can be better controlled than on other trail segments. The weak link in creating market-ready trail experiences on the TCT-KVR is infrastructure and without substantive improvements to the trail surface, signage and basic amenities, new investment of private capital in tour products and services will be slow in developing. For comparison, multi-day rail trail packages marketed on the Otago Rail Trail in New Zealand have trail lengths of between 150 and 250 kilometres. An average daily tour segment would be 30 to 40 kilometres, which would vary in accordance with other activities scheduled for that particular day.
Recommended Actions 11. Priority trail segments that balance short-term market potential with the long-term vision of a complete trail. TOTA can work with community stewards, RSTBC and RDOS to identify trail segments that could reasonably be developed over the next five years. Based on feedback obtained during consultations with stakeholders, the development potential of trail segments by chronological order are presented in Table 1. This ordering considered current use levels, potential use levels, potential for contribution to extended tours, costs of upgrading and improving the trail to minimum rail trail standards, local community support and extent of user conflicts. These factors would need to be qualified through discussion with communities and stewards on a regular basis. If productive partnerships emerge, priorities in Table 1 may change as well. For example, re-establishing the Penticton to Summerland portion of the trail through Penticton Indian Band lands would be a priority if a partnership with PIB could be established. It is noted that the entire TCT-KVR and branch lines into the south Okanagan and Merritt form part of the overall trail vision—Table 1 is a recommendation on sequencing which, if followed, would first, encourage more multi-day tours, and second, make it easier for local stewards to improve conditions on currently remote and incomplete
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sections of the trail. This would be in keeping with RSTBC’s 2014 revised strategic approach, which emphasizes community partnerships as a rationale for trail maintenance and upkeep.
Table 1 Sequencing of Trail Marketing and Development
Segment Length Mixed‐use? Rationale Christina Lake to 17 No Excellent views, grasslands, local user agreement, Grand Forks good highway access, local investment in trail. Myra-Bellevue Park 25 Park-No Proximity to Kelowna, protected area, good trail surface to Chute Lake Crown land-Yes and access to services, relatively high level of market awareness. Little Tunnel to 16 No Excellent views of Okanagan Lake, proximity to Penticton hospitality and wineries, strategic intersection of multiple trail systems, local and regional investment in trail, active transportation corridor. Summerland to 40 Yes Totally redone trail between Summerland and Faulder,
Short-term Short-term Thirsk Lake proximity to train tours, extensive in-community signage and services. Trail deteriorates west of Faulder. Otter Lake to Jura 44 Princeton-No Red cliffs/canyon, quality infrastructure in Princeton Crown land-Yes (paved trail, new bridge, maintained), good surface between Princeton and Jura. Midway to 38 Yes Mostly hard-packed rail bed, grass and ranchlands, few Westbridge services but Midway and Rock Creek could expand as staging areas. Some paved road used as detour. Land owners discourage motorized uses. Chute Lake to Little 25 Yes Access to several rock ovens and excellent potential for Tunnel linking Myra to Naramata/Penticton but major issues with trail surface including sand and washboard. The grade is a consistent 2% and eastbound trail users will find this section challenging, even more so with variable surface. Shuttling services would improve use. Penticton to 15 Yes The TCT is Highway 97 and paved streets, as it avoids
Mid-Term Mid-Term Summerland original right-of-way through Penticton Indian Band land. Opportunity for partnerships with PIB for re- establishing the original trail. Penticton to 58 Yes Low grades, exceptional potential through wine country, Osoyoos Vaseux Lake, clustered services, close proximity to proposed National Park Reserve, no historical usage by motorized users. RDOS working on filling gaps on the trail; partnership opportunities with Osoyoos and Penticton Indian Bands. Grand Forks to Eholt 22 Yes Rocky for much of the first 16 kms, few services in western sections. Eholt to Midway 29 Yes Hard-packed rail bed but few services. Westbridge to Myra- 70 Yes Surface rough, washboarded in places, motorized uses. Bellevue Thirsk Lake to Jura 48 Yes Trail surface variable, often crisscrosses with Princeton-Summerland Road, few services. Otter Lake to 31 Yes Rugged and rough trail surface, frequent washouts, Brookmere limited services, no Internet, high levels of motorized use. Brookmere to Merritt 47 Yes Incomplete route, mixed road/trail, not recognized as Long-Term Long-Term trail by RSTBC, highly varied, limited use, few services except near Merritt. Merritt to Spences 65 Yes Exceptional views and landscapes along the Nicola Bridge River, but many sections incomplete, missing crossings, First Nations concerns. Brookmere to Hope 91 Yes High levels of motorized use, surface rough/variable, outside TOTA boundaries.
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• Development of a multi-partner capital plan for medium-term trail and amenity improvements. Identifying trail segments in need of Best Practice improvement and preparing a supporting policies will New Zealand Cycle Trail not be enough to increase the resources available for Î p 114 trail improvements, particularly within smaller communities and in rural areas. TOTA and TAC should prepare, in cooperation with communities, RSTBC and Trails BC, a unit cost level estimate of total and incremental operating and capital requirements for priority sections. RSTBC is negotiating a five-year capital plan for the Columbia and Kootenay rail trail and a similar plan is needed for the TCT-KVR, although it would be considerably more complex. A ten-year planning horizon would frame the plan but costing and specific developments could be focused on the next five years. The identification of funding and other contributions by government, communities and industry would highlight the benefits of leveraging and facilitate fund raising. • Continuous multi-use trail between Penticton and Osoyoos. Many sections of the original Osoyoos subdivision railed and right-of-way has been lost because of settlement and other development activity in the south Okanagan. The spur line that runs down the west side of Skaha Lake to OK Falls could be extended to link to the multi-use path in Oliver and then link the wine region between Oliver and Osoyoos, an area rich with visitor services and tour opportunities. TOTA could support the RDOS and the trail development initiatives outlined in the Regional Trails Master Plan and local area OCPs. The Master Plan recommends, among other things, completing the trail connection on the west side of Vaseux Lake, and coordination with the Oliver Trails Master Plan. The Federal Government announced in August, 2015 that it would be providing grant funds to complete the KVR trail between Oliver and Osoyoos so there are converging investments that give this segment high potential. • Market ready product and destination features inventory. A product and events inventory that can serve as a research base should be assembled for the trail. A central repository of existing sources (e.g. tourism operators, facilities, attractions) should be maintained on the website. • Regional trails plan for Boundary Country. Outside of the Okanagan and the Boundary, the Kootenays have the best agglomeration of abandoned rail trails, including the KVR and Columbia & Western railways that link Myra-Bellevue with Castlegar, and beyond. A trails plan similar to that of the RDOS would provide direction for local trail development efforts and show linkages to the exceptional historical resources and interpretation possibilities. • Trail plan that links the Merritt sub-division of the KVR to the TCT at Brodie. The Nicola Valley Explorers Society has been putting what resources it can access to maintaining a semblance of a trail west of Brookmere and down to Merritt, but there are numerous stream crossings, trail surface issues, shared road/trail section, and conflicts
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with motorized users that prevent this segment from being a marketable experience to all but the hardiest cyclists at this time. The fact that this segment is not part of the TCT and not recognized as an official “trail “ by RSTBC means it falls outside provincial funding envelopes available to most of the rest of the TCT-KVR. The history and current visitor experience of the Merritt/Nicola area is also distinct from the Okanagan, Similkameen and Boundary sub-regions. There are some compelling reasons for not ignoring the Merritt sub-division as a development target for the rail trail. First, it is the most accessible from the Lower Mainland and amenable to short excursion or day use by this major market. Second, routes 5 and 5a are among the busiest in the province, with most interior-bound highway travellers passing through the Coquihalla and Merritt areas. Third, Merritt is part of the Gold Country Community Society, which would be a ready vehicle for trail marketing. Fourth, there is a long history of local stewardship maintaining interest in the trail. The plan would not be developed with RSTBC, since it has no jurisdiction, but with Ministry of Transportation and Infrastructure (MOTI) and the BC Transportation Finance Authority (BCTFA). TOTA can work with the Nicola Valley Explorers to update priorities first identified in the 2000 report for the City of Merritt on the Brookmere to Merritt section of the trail (Aestech Consulting Inc. 2000) as the basis for discussions.
12. Resource assistance for self-identified communities and stewardship groups who wish to undertake trail development in support of the Strategy. The following resources can be made available to communities through the website:
• A handbook that local stewardships groups can use to recruit and organize volunteers, identify and prioritize trail projects, engage in and resolve issues around motorized and non-motorized use, form partnerships and seek out trail funding. The state of Pennsylvania has a Trail Town Program for small rural communities that wish to develop trail tourism and outdoor recreation. The purpose of the Program is to ensure that trail communities and businesses maximize the economic potential of the trail. The Program also works to address trail-wide issues and opportunities through regional cooperation and to build the connection between trail and town (Trail Town Program 2015). • Best practices from inter-regional trail alliance models so there is an opportunity to contribute to and participate in a broader, functional rail trail network. The Shuswap Trails Alliance, Central Okanagan Trails Alliance and emerging initiatives in the North Okanagan/Shuswap for a valley-wide trail could share their insights and lessons learned with communities along the TCT-KVR. Shared planning and resources could significantly enhance efforts to develop these trails into a broader rail trail experience. • Best practices and resources from North America trail organizations, such as American Trails and the Rail Trails Conservancy.
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• An economic and community benefits handbook that quantify the economic benefits of cycling, hiking and equestrian uses by visitors, as well as residents. This would help stewardship groups build community support for trail development. • Funding sources for trail development—these are constantly changing and can range from trail/recreation specific to broader programs with multiple mandates or targets.
− The Canadian 150 Fund, administered by Canadian Heritage is to create opportunities for Canadians to participate in local, regional, and national celebrations for the country’s 150 anniversary. Applicants must provide 25% of the total approved capital cost but this can include in-kind contributions (e.g. volunteer labour). A review of the funding guidelines and examples suggests that different aspects of this strategy, particularly events, would be eligible for funding. (Canadian Heritage 2015) − The New Building Canada Fund – Small Communities Fund could also support cycling infrastructure projects, although to date most project have involved basic municipal infrastructure such as water and sewer facilities. The Fund is supported by provincial and federal governments for communities with a population of less than 100,000 people. It runs from 2014 to 2024. − Bike BC. The Province funds infrastructure which forms part of a bicycle network plan prepared and adopted by a municipality or regional district through BikeBC. Bike BC funded the E&N Rail Trail in the amount of $1.7 for improvements between Esquimalt and Langford. The North Shore Spirit Trail received $3.8 million for a waterfront multi- use path connecting Horseshoe Bay and Deep Cover. This project was a partnership between the Squamish Nation and the City and District of North Vancouver. (Bike BC 2015). − National Trails Coalition (http://www.ntc-canada.ca/). In 2014, the Coalition received $10 million dollar from the Federal Government that was used to support trail projects across Canada on a matching dollar basis. Grand Forks, Kelowna and Princeton were grant recipients for the 2014-15 intake, but the program wraps up at the end of 2015. Other funding may be available in the future. − Trans Canada Trail (http://tctrail.ca/). Their current funding focus is the completion of missing sections of the TCT, none of which are in BC, up to 2017. However, they may be a potential source after that year. − Corporations with community engagement programs that target recreation, transportation and sustainability issues. There are many such companies in the province, for example, Mountain Equipment Coop’s community contribution program, Woods Canada dream job contest, and Phillips Brewing’s BC Benefit Brew contest1 (Phillips 2015).
1 Trails BC was one of ten BC charities eligible for funding from the brewer in 2015.
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3.4.2 Trail Funding
Key Issues Funding for the maintenance and upgrading of the TCT-KVR is a recurring challenge for the province, communities and the stewardship groups. The annual RSTBC budget is approximately $120,000 for maintenance and $300,000 for capital. There are also cash expenditures being made locally plus a significant amount of undocumented “sweat equity” going into maintaining the trail for example in the form of casual labour for things like clearing minor debris and patching the surface with on-site materials. Stewardship groups will also fund-raise and utilize the contributed labour of members for signage and way finding so trail users can have a safe and enjoyable experience. The costs of maintaining the trail are therefore much higher than the RSTBC budget allocation. The average cost for improving a kilometre of trail surface can range from between $20,000 to $30,000 per kilometre for recycled asphalt/aggregate to more than $60,000-100,000 for straight asphalt. Assuming the minimum requirements of a recycled asphalt surface, resurfacing the entire trail, excluding those segments already improved to this standard, would amount to between $12 million and $24 million. This would not include additional improvements related to culverts, bridges, signage and other infrastructure needed to create a consistent conditions on the trail. In urban areas, the costs can rise significantly as municipal infrastructure like lighting is included. For example, the Vancouver Island Rail Trail through Nanaimo identified costs that ranged from $2 million to $4.5 million per kilometre. Costs for paving the KVR through Princeton were approximately $52,000 per kilometre.
Recommended Actions 13. Friends of the KVR Program. Friends groups are formally (or informally) established groups whose purpose is to protect, improve or promote an asset, in this case the trail. One of the biggest impediments to improving the TCT-KVR is the absence of a grassroots entity strategically planning for the trail within the Thompson Okanagan. A Friends program could fill a vital intra-regional role linking national, provincial and local actors into a cohesive strategic approach to trail development. Organizations like the TCT Foundation, Trails BC and RSTBC (each of who have much larger mandates than the TCT-KVR) and smaller community and stewardship groups such as the Myra Canyon Restoration Society or the Grand Forks Trail Society would have a forum to discuss, engage and promote the trail as a once-in-a-lifetime opportunity for conservation, recreation and inter-community transportation. A Friends groups can be self-directed, bring a ideas and energy for improving the trail and of course help with trail building and maintenance. It could also be targeted at specific projects and be integrated with the Adopt-A-Trail program (next strategy). TOTA can compile a master list of potentially interested organizations and individuals, host an organizing meeting and proceed to identify the key elements of the organization, including legal status, vision and mission statements, objectives, targeted initiatives, member page and resource section on the new website and communications strategy.
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14. Adopt-A-Trail Program. An Adopt-A-Trail program is one way to raise money for specific trail segments. Individuals, families, trail user groups, outdoor groups, faith-based groups, service organizations and businesses could be solicited to participate. Adopters have the opportunity to engage in trail maintenance and planning, become involved in conservation, bring a sense of ownership the entire trail network and contribute to protecting trails for future generations. Adopt-A-Trail volunteers assist Park staff in managing and maintaining trail systems. Suggested program components are as follows:
Minimum two kilometre length
• No overlaps • Term of two years, renewable upon mutual review • Guide of basic maintenance activities provided (e.g. brushing, debris clearing, litter collection, trailhead/parking lot cleaning, reporting vandalism), training provisions, dress and material requirements (e.g. basic tools such as rakes or shovels, garbage bags), reporting and logging procedures, and safety procedures The Program would have to be coordinated with RSTBC and its licensees (i.e. stewardship groups, local government) on those portions of the trail where agreements have been negotiated. TOTA could oversee promotion of and recruitment for the program, provide a program guide, including application, certification and reporting forms, help assign segments and provide a classroom orientation for adopters, while RSTBC and its licensees would be responsible for addressing permitting and liability issues, signage and coordination of the on- the-ground work.
15. Regional rail trail funding protocol. There are numerous trail development efforts ongoing in the Thompson Okanagan, including another major rail trail initiative, the Okanagan Rail Trail. A valley-wide trail initiative with proposed trails on the west side of Okanagan Lake between West Kelowna and Penticton is also in discussion. This has led to a set of potentially confusing development scenarios and future competing fundraising efforts as communities and trail stakeholders vie for scarce resources. In terms of the KVR specifically, trail proposals in the Okanagan have the potential to draw capital away from the Boundary, Similkameen and Nicola areas. TOTA should take the opportunity to facilitate or lead a coordinated fund raising effort or secondarily, seek a memorandum of understanding among key stakeholders that recognizes the strong mutual benefits that can be gained by developing an extensive trail network through the region, and lays out a framework for cooperating on fund raising.
16. Grant writer. Organizations such as Northern Development Initiatives Trust and Columbia Basin Trust (neither of whom service communities in the Thompson Okanagan) will fund grant writers for communities because the benefits in terms of leveraged funds generally outweigh the costs in terms of preparing the grant applications.
• BC’s $75 million Rural Dividend is targeted at rural communities with populations less than 25,000. Funding of $25 million annually is available in for community capacity building,
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workforce development, community and economic development and business sector development. Local governments, not-for-profit organizations and First Nations are all eligible to apply (Government of BC 2016). • The Southern Interior Development Initiative Trust (SIDIT) makes grant applications for a variety of community projects and while direct trail development and signage are ineligible projects, a host of other initiatives related to this strategy, including tourism, agri-tourism, cultural and technology initiatives are (SIDIT 2015). • The Federal Gas Tax Fund Each year provides funding for local infrastructure projects. In 2011, it became a permanent source of infrastructure funding for municipalities. Gas Tax funds were used extensively for the development of the E&N rail trail and has been used in Boundary Country in support of trail initiatives.
17. Public fund-raising campaign. There are different options available for raising funds to support the trail, but with corporate and user-pay opportunities discussed in the following two strategies, this initiative is focused on a conventional fund-raising. This would call for the establishment of a charity similar to the Nanaimo Regional Rail Trail partnership setup in 2014 to support the E&N rail trail and the campaign recently announced to support the Okanagan Rail Trail initiative. The Okanagan Rail Trail has committed to raising up to $5 million for trail construction and have already secured commitments of $350,000 from two donors (Okanagan Rail Trail 2015). From there, a variety of fund raising initiatives would be developed, from crowd-funding of specific sections or infrastructure to co-hosting with other charities on trail rides. In Nova Scotia, a Ride the Rails for Cancer event was cooperatively hosted by the cycling community and the provincial blood cancer society (QEII Health Sciences Centre Foundation 2015).
18. Corporate trail builder partnership program. Resource Best Practice companies that are active in the vicinity of the trail could be Bibbulmun Track solicited to contribute in-kind services when the opportunity Î p 121 arises. There are many forestry, mining/mineral exploration, energy, utility and construction operations active along the trail and in the past they have contributed various services, pro bono, for trail improvements. In 2014, Gorman Brothers graded the trail between Gillard forest service road (FSR) to Chute Lake for free, in return for recognition on the website of the Okanagan Trestle Tours (Bond 2015, pers. comm.). This partnership was possible because the company had crews and equipment in the area. Many sections of the TCT-FSR have been tenured as a utility corridor and companies like Fortis BC and Shaw Cable maintain their facilities on a regular basis. The Boundary Pathway Society has approached Fortis to lend engineering assistance for their planned paving/hardening of the Christina Lake to Grand Forks section of the trail. In 2012, the Grand Forks Community Trails Society partnered with local manufacturer Roxul Inc. for the construction of a trail head parking lot and kiosk at the 68th Ave. bridge (Moslin 2015, pers. comm.). Similar such partnerships have occurred in other communities. A formal program would consist of a short
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guide to help communities identify, recruit and recognize partners. The Similkameen Trail Society obtained funding from Fortis BC to install solar-powered LED bollards along the trail system within Keremeos to increase visibility in the evenings and enhance its appeal (Fortis BC 2015).
19. User contributions to the trail. There are some examples of rail trails in North America that charge user fees, but these are the Best Practice exceptions rather than the rule because of their administrative Trail Fund New Zealand complexity and potential cost to monitor and enforce, Î p 119 especially in rural areas. The TCT-KVR is an unlikely candidate for user fees because of its TCT designation and multiple-use crown land status. Attempting to separate resident from tourist use (under the assumption that the former already “pays” for the trail through other means) further complicates this issue. Technically, any commercial use of the trail that is crown land is supposed to be subject to rent payable to the Province for licences of occupation (LOO) issued under the Adventure Tourism Policy. This would essentially be similar to user permit fees for similar activities in provincial or national parks. But it is understood that the LOOs existing on the TCT-KVR were issued for stewardship purposes, under the Forest and Range Practices Act, and thus not subject to rents because stewards are not engaging in commercial activities (e.g. conducting trail tours for commercial gain). Tour operators who outfit trail users for self-guided experiences (i.e. they do not directly guide on the trail) also would not normally be subject to the Adventure Tourism Policy. As of today, therefore, trail users from outside BC do not pay for their use and similarly there is no direct contribution to development or maintenance. But that does not mean there is not a willingness to pay for a valued rail trail experience either by trail users themselves or by tour operators. TOTA should identify options and work with industry and government on instituting a practical, reasonable and sustainable revenue stream from trail visitors. The best practices review identified the following possible options:
• A nominal charge for the downloadable trail app • Crowd funding for specific projects (e.g. signage, kiosks, Best Practice infrastructure) to be co-hosted with corporate partners User Fees Î p 120 • Percentage of any merchandising proceeds • Booking commissions through the website/app 3.5 MARKETING
3.5.1 Rail Trail BC (RTBC) Brand development The brand component of this strategy is intended to assist in creating an internationally export-ready tourism product associated with the region’s rail trail network. It is a given that rail trails, in conjunction with other initiatives and tourism products, have the capacity to draw both domestic and international guests to the region. RTBC’s goal, stated in the simplest terms, is to find ways to increase foot and bicycle traffic on the rail trail network.
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The RTBC brand needs to establish what is unique, distinctive and memorable about the BC rail trail experience. To define the aura and stories that make our rail trails worth travelling to visit. For this to happen it is necessary to elevate the tourism experience in both our large and small communities and to provide operators in all of those communities the opportunity to realize positive and sustainable revenue increases. The current situation regarding the rail trail network in BC is a fractured one with diverse user groups, multiple areas of jurisdiction and variable quality in trail surfaces. Stakeholders are far from unified in their short- and long-term objectives and are faced with daunting issues, bringing together these groups and individuals under a cohesive umbrella working with a common strategy will lead to positive results.
Why a rail trail brand First and foremost RTBC needs to establish in the consumer’s mind that there is a provincial rail trail network and not just local community driven initiatives using portions of the trail system. BC’s rail trail potential is extensive, it projects well beyond the Kettle Valley Railway (KVR), with new sections emerging in the near future (Shuswap/North Okanagan Rail Trail) and existing, high quality sections (Columbia & Western Railway, Midway to Castlegar) already offering excellent rail trail experiences. The larger province-wide network needs to be made known and requires an identity.
The new brand will strive to create a distinct identity for the region’s and province’s rail trail system and help coalesce a big picture of the system and its potential.
What the brand can do Create an awareness in the consumer’s mind that the region’s rail trail system can provide a first class user experience.
Provide much needed unity in a fractured environment.
Get communities to buy into the big picture. A solid strategy that is supported by respected regional and provincial organizations (DBC, TOTA, RDOS etc.) will add momentum and attract fence-sitters to the fold. The brand will perform a key role by serving as the public face for this collective.
Establish that there is an extended rail trail network in BC ready for public use. The KVR is only a part of the overall network, it is an important part undoubtedly but there is so much long term potential to the expansion of activities on the network that it serves the long range strategy best if the brand is able to encompass that potential.
Create an awareness of the comprehensive technology solution. The brand will be constantly promoting www.railtrailbc.ca
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How to establish the brand Signage. Integrate the brand into existing signage as comprehensively as possible. Install new signage at key access points. The signage graphic will promote the new brand and the web app — www.railtrailbc.ca.
Our comprehensive technology solution. This web app (combined website and app capitalizing on the capabilities of HTML5) will be a complete rail trail guide to the region and ultimately to BC as a whole. The vision is that the web app will serve as the latest, most current info source for all things pertaining to the rail trail system.
The goal is to make the web app indispensable to trail users. The web app is the perfect environment for establishing the new RTBC brand. Apart from all the trail info, public information sections can keep interested users appraised of ongoing initiatives that relate to the strategy and its implementation.
Marketing initiatives. From trade show displays, social media, and editorial coverage to advertising and promotions, there will be a single brand to help identify RTBC as a trusted, comprehensive source of information about BC’s rail trail network.
Brand Rationale The driving concern with the brand rationale is to produce a design that is unique, simple and strong which will integrate well with the plethora of existing rail trail stakeholders. Current signage contains multiple trail stakeholder brands – Trans Canada Trail, RDOS, KVR Trail, municipalities etc. RTBC presence on signage is crucial, it needs to fit into the mix without being complex or requiring large areas of space to make the statement. Also important to the brand rationale is the need to create a visual Best Practice representation of the brand that is high level, all encompassing New Zealand Cycle Trail and forward looking. This means the design cannot try to create Î p 107 an impression of the user experience when that experience is highly variable today and in several years will have likely evolved into a new iteration. With wild and woolly sections linking to smooth, paved sections RTBC must develop brand visuals that rise above both types of conditions. RTBC marketing will deal with the task of creating realistic expectations for consumers, as trail conditions evolve so will the marketing but the brand visuals need to be crafted to signify the bigger picture of the potential rail trail network.
Brand core values The brand core values are the cornerstones on which the essence of the rail trail experience is structured. These values are somewhat unique to the BC rail trail environment, they establish what visitors can anticipate will be the nature of their overall experience, what they will see and what they might feel. There are three components – the heritage, the natural beauty and the challenge.
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The heritage – all of BC’s rail trails fit into the matrix of the province’s early history. The Shuswap & Okanagan Railway, Vancouver, Victoria and Eastern Railway, Columbia & Western Railway, Columbia & Kootenay Railway, Nicola, Kamloops and Similkameen Railway, Nakusp & Slocan Railway, Nelson & Fort Sheppard Railway and the Kettle Valley Railway all helped open up and connect BC’s southern interior communities. This network facilitated commerce and migration helping to make the province what it is today.
The natural beauty – unquestionably BC has one of the most beautiful and varied natural landscapes in North America. With coastal temperate rainforests, arid interior zones, mountain ranges, huge valleys and large lakes all populated with a great variety of indigenous wildlife, the nature experience ranks as world class. Studies have shown that travellers are drawn to the sheer vastness of BC’s nature, its abundance and diversity. It’s the experience that they come for, the brand supports the framing of that experience for prospective visitors.
The challenge – BC not only has nature it has wilderness. Research has found that while not all travellers plan to get out and immerse themselves in the wilderness, the fact that they can “rub shoulders” with it captures their imaginations. The rail trail network has the ability to cater to a wide variety of outdoor experience levels from easy day trips to intermediate weekend trips to week-long immersive adventures. The network isn’t fully market ready. But there is always room for the adventurous to elevate their level of commitment, this can encourage visitors to return for more during subsequent visits. The mystique that surrounds the Appalachian Trail or the Pacific Crest Trail is generated by the knowledge of how monumental those trail networks are, most users only ever experience a small portion of the AT or PCT but knowing they have tasted part of it provides a lasting memory. BC’s rail trails are just embarking on a period of concerted development, expansion and improvement, portions are fully prepared while others are still very wild and wooly. It is important to realistically present the rail trail network as a work-in-progress in order not to overinflate user expectations. However promoting the challenge component can build mystique while the full network is brought up to market readiness.
The brand symbol One of the most visible elements of the brand is the symbol/wordmark combination. Guided by the Destination BC brand, this draft concept is a recommendation only, however the final symbol will be an extension of the DBC brand style.
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Deconstructing the brand symbol The symbol/wordmark addresses our brand objectives and core values:
of increasing public awareness of the rail trail network with the clear typographic treatment of RAIL TRAIL British Columbia. It will be highly visible in the signage marketplace (see signage section) and in our technology solution environment (see technology solution section).
of serving as an overarching brand. Its simplicity and clarity enables it to adopt the role of unifier of the disparate elements of the segmented Best Practice “branding” landscape that currently exists on the rail trail Vennbahn Cycle Route network. The all encompassing connotation of RAIL TRAIL Î p 108 leaves no room for misunderstanding that the whole province-wide network is being referred to.
typography – the main font, a customized creation, captures the look and feel of a trail system with its unique flair. It is a proprietary design for Rail Trail BC. The sub-title and URL font is Euphemia UCAS Regular. This font grouping elevates the wordmark from the sea of static, traditional typefaces and over-quirky, hand-painted letters to something that encapsulates our positioning of Cultured and Raw.
colour – orca black, salmon red and forest green support the combined theme of BC heritage and natural beauty fulfillment.
3.5.2 Rail Trail BC (RTBC) signage draft A comprehensive signage strategy represents one of the significant ways that customer’s rail trail experiences can be enhanced. Clear and consistent way finding markers that present accurate information regarding location, direction to next waypoints, distances, safety issues etc. combined with interpretive display panels at significant locations will enhance user’s understanding of the
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57 Thompson Okanagan Regional Rail Trails Tourism Strategy system they are travelling on and sense of history, heritage and environment that they take away with them. Signage also represents an excellent opportunity to expose the rail trail network brand and to drive user’s to www.railtrailbc.ca and our technology solution.
Challenges Adopting the best practices strategies of existing trail systems in the region and province only makes sense. With significant signage already present on the rail trail network it is expedient to integrate the new RTBC brand as much as possible with existing sign systems. Signage represents a capital investment and is labour intensive, RTBC intends to utilize partner hardware were possible and to implement new hardware only were no comprehensive system is yet in place.
Signage rationale The driving concern with the signage rationale is to produce a branded way finding system that represents best practices and which will integrate well with the plethora of existing rail trail stakeholders. In many cases current signage contains multiple trail stakeholder brands – Trans Canada Trail, RDOS, KVR Trail, municipalities etc. Our presence on signage is crucial, RTBC’s brand needs to fit into the mix without being complex or requiring large areas of space to make a statement. RTBC also needs to establish the rail trail network brand as prominently as possible in order to create a true regional and provincial network consciousness among customer’s. RTBC wants users to view on- trail information consistently, feel comfortable with the notion that they are on track and that they are partaking of a portion of a much larger, ultimately world class rail trail experience. Consistently branded signage will complement marketing strategies by enhancing the rail trail network’s aura among users and by driving them to www.railtrailbc.ca via sign notifications and QR codes.
3.5.3 Visual Identity Signage Recommendations The Rail Trail BC brandmark provides the foundation of the visual identity and should be applied cohesively across all mediums, including the way finding signage program. A Graphic Standards Manual for Signage should be produced.
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Integrating with existing on-trail signage sample The Rail Trail brand will be attached to existing wooden or metal supports as an extension to the top the post. This avoids the need for the repositioning of current sign plates and blazes on existing signage. Best practices in provincial trail system signage is favouring 6x6 inch or 4x4 inch square wooden posts that are then used for trail information plaques and blazes. The two-sided RTBC flag bolts onto the wooden post and provides a prominent position for the brand along with excellent visibility to trail users coming and going. The flag sign can also be attached to round metal poles with brackets where needed.
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The “flag” treatment for the Rail Trail brand is distinctive, highly visible and slightly reminiscent of the rail signal system used by railways today and in the past.
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Examples of the RTBC flag sign on existing KVR on-trail signage.
Integrating with existing entry point signage sample Entry points to the rail trail system tend to have existing large, prominent signs or kiosks. The complexity of these units precludes the effective addition of a small RTBC flag to the structure, the messaging would be overwhelmed. In such cases, independent, free-standing RTBC sign posts will need to be installed. Using the standard 6x6 wooden post favoured by the RDOS Parks & Trails signage guidelines, the post will provide directional guidance, distance to next major entry point or community, QR code for accessing the web app, access restriction symbols and an area for stakeholder partners. Some of this information will depend on what information is presented on the adjacent “local” sign, access restriction symbols may be redundant and therefore not included.
The QR code should be accompanied by this text – Access our comprehensive online resource railtrailbc.ca.
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Entry Point Identity Signage samples A + B For key entry locations where local groups already have a kiosk sign setup that includes mapping and other trail information, RTBC needs an independent sign composed of printed metal sign plates and wooden support post. Repetition of access restrictions may be redundant but basic direction, section, distance, QR code and stakeholder partner information should always be included.
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Entry Point Identity Signage sample C For key entry locations where no existing local signage is in place RTBC should install a prominent kiosk containing directional, section, distance, map, QR code, access restrictions and partner stakeholder information. The sign construction consists of two 6x6 inch wooden posts, printed metal plates and an angled metal roof to shelter the unit from sun and rain.
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Primary Entry Point Identity Signage sample D For primary gateway locations, feature signs may be required. These would be highly visible locations where the signage would be prominently on view to the general public such as near major highway roadsides and in the vicinity of major urban centres. These locations would be prime opportunities to promote the RTBC brand and the existence of the whole rail trail network. The sign construction consists of 8x8 inch wooden posts evoking railway ties, steel vertical posts symbolizing rails (one gunmetal grey and one RTBC green), field stone lower support with printed metal plates (the sign can be two-sided depending on location).
3.5.4 Rail Trail BC (RTBC) Technology solution draft The brand component of this strategy is intended to assist in creating an internationally export-ready tourism product associated with the region’s rail trail network. The RTBC brand needs to establish what is unique, distinctive and memorable about the BC rail trail experience. To define the aura and stories that make our rail trails worth travelling to visit. The single most effective way to establish the brand and to provide potential and actual users of the rail trail network with the most useful tool for enjoying the experience is with a comprehensive technology solution. This solution involves the development of a rail trail web app. This web app will be a complete rail trail guide to the region and ultimately to BC as a whole. We envision the web app will serve as the latest, most current info source for all things pertaining to the rail trail system.
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Web app defined In computing, a web application or web app is a client-server software application in which the client (or user interface) runs in a web browser. Web applications are popular due to the ubiquity of web browsers, and the convenience of using a web browser as a client to update and maintain web applications without distributing and installing software on potentially thousands of client computers is a key reason for their popularity, as is the inherent support for cross-platform compatibility and therefore the elimination of the need to update multiple tools. Common web applications include webmail, online retail sales, online auctions, wikis, instant messaging services and many other functions. Web sites most likely to be referred to as “web applications” are those which have similar functionality to a desktop software application, or to a mobile app. HTML5 introduced explicit language support for making applications that are loaded as web pages, but can store data locally and continue to function while offline. The goal is to make the web app indispensable to trail users. The web app is the perfect environment for establishing the new RTBC brand. It is also the best environment to create realistic expectations in the consumer, rail trail information within the app will clearly reveal trail conditions, proximity of amenities and services etc. Apart from all the trail info, public information pages can keep interested users appraised of ongoing initiatives that relate to the strategy and its implementation.
Web app features GPS quality route finding and position locating (when in cell Best Practice range); Bibbulmun Track Î p 115 zoomable, detailed map driven by Google Maps including multilayered info tabs with switch-on-and-off capabilities;
the ability to pre-download any section of the trail network for on-trail use when out of cell range;
the ability to download GPS tracks for use on visitor’s GPS devices;
trail surface conditions section-by-section, colour coded for easy reference;
grade elevations for each section of the network;
level of difficulty evaluations for each section;
access points
distance calculator
available services along the route (info centres, public amenities, food, accommodations, camp sites etc.);
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highlights of the rail trail network;
operator and tour info including suggested/available itineraries;
extent of cell phone coverage;
history and interpretive experience highlights;
social media components where users can post photos and stories to the usual social media networks or to private personal daily diaries. Social media integration includes an all-inclusive hub as well as regional/sectional page sliders filtering the stream on those selected pages to provide posts that relate to that zone only.
location sensitive social media streams and search for services within a given range of the user;
weather information, hazard warnings etc. plus the ability to show detours as necessary.
Website and mobile device compatibility The web app should be built with responsive design in order to produce good user experiences on all devices.
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Web app design concept
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Web app map concept
Design concept for web app trail section maps showing map Best Practice information that can be toggled on and off using legend sidebar. Biroto.eu Tabs across the top of the map provide other info for that trail Î p 114 section. Mousing over (or tapping on) sections of the trail provide length and trail condition descriptions. Mousing over (or tapping on) map pins provide images or specific info on that location. The map is fully scrollable and zoomable on all devices.
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Recommendations 20. Brand development. The RAIL TRAIL British Columbia brand concept presented in the previous section serves as a baseline for further discussion. The final outputs would be considered within a potentially larger context of the rail trails vision and may require further development. The final symbol, wordmark, typefaces and colours should be endorsed by the province as part of the Strategy implementation phase. The designs presented were a result of research and consultation of the trails advisory committee for this project and the designs have potential to serve as the final solution.
21. Rail trail graphic standards manual. There will be many community, business, DMO and corporate partners who will be participating in the implementation of this plan, through marketing initiatives, trail development, signage and infrastructure improvements and fund raising. In almost all these cases the RAIL TRAIL British Columbia will be featured in a variety of print and digital environments. It is essential it be vigorously regulated so it develops over time as the standard, stand-alone wordmark. A digital graphic standards manual would specify the rationale for the brand, colours, typography requirements and guidelines for use in print and digital media. Downloads on a corporate website would be available, including specific treatments and specifications.
22. Signage strategy. The proposed signage designs outlined in the previous section provide a context for how a signage package could be integrated into existing trail system signage. Feedback from the advisory committee indicated the solution presented was practical, affordable and would likely be effective in presenting the brand throughout communities across the trail system, without reversing course or over-stepping those organizations already investing in existing signage. In fact, the proposed signage design promotes those relationships and adds to the sense of cooperative effort. Several stakeholders noted that with impending investments in signage at several spots on the trail, it was imperative to roll out and achieve buy-in on the designs sooner rather than later.
23. The next steps for a technology solution. The technology solution is a web app device that requires development beyond the design elements set out in the previous section of this Strategy. This includes both content and functionality.
• Geospatial data sets exist for each content item in the design concepts, and there is no expectation that primary research would be required in order to take the web pages as presented live. The web app map sample on the previous page would link to data managed by DataBC to populate Trail Info coverages while Google information can be utilized for Services Info. Real time conditions on the trail can be managed through social media reporting which, while requiring moderation, at least represents a reasonable solution to what has historically been a problem for the TCT-KVR, that is, stale-dated information misrepresenting the trail. The web app must fully incorporate the responsive design elements presented here—our research indicated that the majority of rail trail sites
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are not responsive to smart phone use. The remaining content is provided internally for example audio-visual materials, marketing copy, stories, social media histories and the like. • The majority of functionality would be accommodated by the native web site architecture, allowing users to either deep-dive into the content whether it be itineraries, communities, stories or different segments of the trail itself. The Call to Action, similar to DBC’s Book Now! button, would be included in the Itinerary pages rather than on the main landing page. It would include a booking engine for guided tours or directions for clicking through to individual service providers for those visitors who are seeking a self-guided experience. • Social media program. Develop a social media program that engages local operators using Facebook, Twitter, Instagram and Trip Advisor for destinations. Monitor and respond to the destination online reputation. As part of the Tourism Business Essentials series, Destination BC offers an Online Reputation Management guide, introductory and advanced workshops and webinars for operators and destinations. DBC’s social media team will be launching quarterly webinars on various social media topics available for free to tourism businesses and organizations. They will also be posted on corporate website. There is also the opportunity to feed information through the TOTA social media program. The social media component will also incorporate a hub (a web page or image slider imbedded in the site that stream a mashup of filtered social media content from all RTBS social media sources to pertinent sections of the web app). This is especially useful for connecting users in the midst of a rail trail experience with other travellers; for disseminating time- sensitive information on special opportunities, events, gaming etc.; and for increasing the level of engagement possible for trail users. The blending of multiple social media streams in one location is very convenient and maximizes investment in social media initiatives.
24. Online Travel Agency (OTA) strategy. OTAs are now an enormous factor in tourism marketing and it cannot be ignored that trip decisions regarding trail visitation will occur indirectly through OTA access to the airline, transportation, accommodation and other hospitality sectors. Exposure to OTA services can of course be achieved by including these searchable services in TCT-KVR packages and itineraries. Encouraging customer reviews and responding to reviews on a regular basis would provide good exposure on major sites such as Trip Advisor and contribute to a high Net Promoter Score. The KVR already has an excellent online reputation but this could be further leveraged and expanded through an OTA initiative.
25. Gamification. The web app would have the capacity for a game Best Practice that engages visitors and heightens interest in the trail Hadrian’s Wall Trails App experience that might not normally be communicated in Î p 115 traditional media or the web app itself. Mobile games are a rapidly growing gaming segment and they have attracted a diverse audience well beyond the public image of young male gamers. Designing a game for the TCT-KVR is about using the latest technology to change people’s motivation and behaviour in a playful and fun way. It can
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feature pre-, during- or post-trip themes that are destination-based or service-based. Some possibilities for the TCT-KVR include:
• A guided tour of the KVR by a train engineer and other local characters—this can bring history and culture alive and allow the user to explore individual communities, ghost towns, railway architecture, and the many personal stories that are rarely interpreted for the average visitor. • A self-guided tour of the full KVR that features the fascinating landscapes, geology, flora and fauna of the trail. • Gaming in specific cultural heritage sites to encouraging exploration and social interactions, something that would have broad appeal for leading EQ segments. • A rewards game, such as that used by McDonald’s, to have participants create storylines using their menu items, with the winner(s) featured in advertising. Winners received gift certificates. • Gaming to contribute to charity partners such as stewardship or environmental groups.
26. Web app integration with local DMOs and other partners. The purpose of the web app will be to serve as the go-to source for trip-planning and rail trail experience information in the Thompson Okanagan, and specifically to the TCT-KVR. The web app will feature data and a call to action that currently does not exist among any existing websites and this content and functionality will create the value proposition that encourages partners to participate in TCT- KVR marketing and development. But the web app is not intended to duplicate or replace local DMO, local government or operator websites—it will still be necessary to engage, hold and transfer a web visitor who wishes to find out more about opportunities within the different sub-regions. These partner websites will want to be conveniently linked to the web app for referral traffic. The alignment should be similar to the Discover Route 97 website, where Signature Experiences and other Things to Do encourage visitors to find out more and further engage their travel planning at local websites.
27. Content management protocol that will correct inaccurate and outdated trail information while boosting website traffic. Make contact with provincial and regional cycling, hiking and trail organizations with websites to coordinate the distribution of mapping and other trail information. This would include Trails BC, Trans Canada Trail Foundation and Cyclo Touring BC.
28. Exposure to US and European publications and websites that specialize in off-road trails. Major sites such as trailpeak.com and trails.com do not list or have outdated information for the KVR. A catalogue of sites should be compiled, GPS data uploaded to populate and update map resources where appropriate, and factual information corrected or updated. The latter website above still has an entry stating Myra Canyon is impassable due to the fires of 2003.
29. Early stage funding strategy. The immediate priority for the implementation of this Strategy is to secure financing for branding and the web app, with signage to be developed once a
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program can be agreed to by partner organizations. A unit cost estimate of the funds needed for these initiatives is provided in Appendix A.
3.5.5 Target Markets
Key Issues Chapter 3 provided a profile of visitor markets in the Thompson Okanagan, cycling markets in BC and cycling trends worldwide that have implications for positioning and marketing the TCT-KVR rail trail. Cycling participation rates and trip motivation quotients tend to be higher among Europeans and to a lesser extent Americans than for Canadians, but sheer numbers suggest that regional markets represent the greatest opportunity to build trail visitation for the industry as a whole. It is recognized that individual operators may specialize in certain markets and may therefore have a customer profile that deviates from this expected norm. However, a review of the industry survey, of which 30 respondents provided guided tours or services on the trail, indicates that visitors who use the trail very much reflect the geographic distribution of the average Thompson Okanagan visitor, that is at least four out of five being from BC and Alberta. The current market for cycling as a trip activity in the Okanagan is estimated at approximately 350,000 but with better tour opportunities, services and amenities that could triple to be more in line with overall participation rates of those who are visiting. Importantly, the likelihood of attracting new or incremental visitors (i.e. those who come to BC and the Thompson Okanagan specifically because of the trail, that is as a trip motivator) would be significantly improved with a better trail experience.
Recommendations 30. Regional markets from BC and Alberta. EQ explorer types for BC (Free Spirits, Authentic Experiencers, Cultural Explorer’s, Rejuvenators) and Alberta (No Hassle Travellers, Authentic Experiencers, Gentle Explorers, Free Spirits) offer the greatest potential for expanding trail use through the alignment of market and product development. These two geographic markets represent approximately 85% of all travellers to the Thompson-Okanagan and they also cite cycling as an preferred activity when visiting the region in greater numbers than either their US or overseas counterparts.
31. Canadian and international markets that already come to the Thompson Okanagan and have high participation rates in cycling and trail-based activities. US, United Kingdom, Germany, Netherlands, and Australia represent key non-domestic markets with high interest in and trip motivation for quality rail trail experiences. Some TOTA tour operators have been very successful catering to these visitors, and although their volumes are small their awareness of and appreciation for rail trails is high and their spending generally higher than domestic visitors. Destination Canada provides EQ profiles of Canadian, US, Australian and European markets to assist with product and market development.
32. Opportunities related to cycling trends and TCT-KVR trail use. Asian, Mexican and South American markets are gradually increasing their share of BC visitation and should be tracked
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for their participation in trail-based activities. EQ profiles are not available for these markets and cycling and hiking participation rates are unknown. Visitation to the Thompson Okanagan will expand over time and niche opportunities may emerge.
3.5.6 Marketing Content and Support
Key Issues As the RDMO for the Thompson Okanagan, TOTA has a clear stake in marketing directly to potential rail trail visitors and to those in the travel trade that act as intermediaries in the planning, purchasing and delivery of tourism experiences. Working with the travel trade and digital channels is an obvious way to start promoting the “new” TCT-KVR while expanding overall market reach. The EQ profiles indicate that travel planning is heavily oriented to the internet and digital media so it is expected that conventional print forms of advertising and supporting collateral will be focused on niche initiatives, for example new events or participation in campaigns led by other organizations like local DMOs. In marketing the TCT-KVR, the availability of market-ready and export-ready products that will engage consumers and market intermediaries such as tour wholesalers is critical. TOTA can play a valuable role in helping tourism operators meet export-ready requirements by educating them about retail, rack and net rates and understanding how commissions are worked into pricing. Most of the experienced tour companies in the Thompson Okanagan are already export-ready, but according to the business survey about one third of tourism suppliers were not. It is this group that will be catering to semi and self-guided trail visitors who will represent most of the increased trail use. They should be familiar with market and export-ready business practices, for example, managing retail pricing so relationships further down the supply chain and value perceptions among consumers are maintained. This is an obvious focus area for TOTA to ensure industry, and communities, are ready and able to serve visitors interested in a quality experience on the trail.
Recommendations 33. Image and video bank targeted to the BC and Alberta EQ explorer types. Imagery is a key component for an effective marketing, and the style of defined by the EQ explorer types is specific. Building an inventory of images and videos that portrays the destination by its setting and travel experiences by season will provide the foundation for visual communications. Imagery is as new visitor experiences are identified and taken to market.
34. Trail history and interpretive stories as marketing content. Stories and interpretive information about the KVR Best Practice and its relation to settlement and industry patterns, First Bruce Trail Conservancy Î p 119 Nations culture and the ecological/environmental are all important elements of a rail trails narrative that can strongly resonate in the market place. Table 9 shows that describing and interpreting the historical and cultural context of the TCT-KVR would particularly appealing to US and overseas visitors. While there is a plethora of resources (e.g. books, websites, archives) available to the dedicated
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researcher, the fact is that most of these stories are beyond the reach of most visitors. TOTA would have the opportunity to animate the rail trail experience by identifying a core story series, compile the written and visual resources to background the story, create the stories following EQ guidelines and distributing the stories through the website to consumers, media and travel trade.
35. Destination Canada Explorer Quotient research materials. Targeting visitors based on the psychographic profiles, combined with demographic and geographic profiles, will continue to provide insights into how to target markets for the region.
36. Printed trail map. No matter how sophisticated and user-friendly digital visitor services are, there will always be a component of the market that will prefer to have in their possession a physical trail map. Trail users always run the risk of having a dead battery or damaged smartphone in which case a hard copy backup can be very useful. All content and artwork would come from the technology solution, featuring access points, trail conditions and available services. Editorial content such as attractions, recreation features and key points of interest would be included. Topographic in design, the map can be 24x36” folding to rack size 4x9”. Inset maps would show important community features. The map can also double as a poster for framing or window display at businesses and organizations along the trail.
37. Blog and newsletter. There will be a considerable volume of events and news as this Strategy is implemented and milestones reached. An online newsletter can keep stakeholders informed of progress while a blog can be used to reach multiple audiences, including trail users and potential visitors. The blog of course can be linked to the HelloBC.com Listings Program.
38. Media relations –Editorial coverage is worth thousands of dollars in equivalent advertising space and readers have more confidence in editorial copy versus advertising claims. This is especially true for major EQ segments (i.e. Authentic Experiencers and Cultural Explorers). Media relations will include responding to media requests for information, hosting familiarization (FAM) tours and generating the interest of media in order to have stories written and published. Hosting media requires cooperation amongst transportation, accommodation, food services and tour businesses in order to be successful. Typically, Destination BC and TOTA will coordinate media trips and contact the community and operators directly, however, having support materials for these organizations or dealing with media directly is required. In order to serve the needs for media the following tactics are recommended.
• Establish a media web page on the website. A media web page is critical to display the soft copy version of key content, which may include: quick facts, pre-written stories, story ideas, suggested itineraries, press releases, contacts, web links and availability of high- resolution digital photography for print use and B-roll for broadcast, if available. • Utilize Destination BC media programs. Travel media relations play an integral role in maximizing consumer and trade awareness of British Columbia as a top travel destination
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through unpaid media coverage in key markets. Travel media include freelance journalists, travel editors, broadcasters, producers and travel trade media. The Destination BC Travel Media Relations program includes activities such as attending key media events, initiating and organizing trips for qualified media, building relationships with key media, and positioning unique story ideas with media. In addition, this division develops press kits and image bank materials for distribution to appropriate travel media. The Destination BC Visiting Journalist Program provides support of eligible costs to bring media to communities, primarily by air or ground transportation. Industry is expected to provide media with accommodations, meals and activities. Destination BC distributes a monthly email communication to their media database. Story ideas and press releases can be sent to the media department. New product information should always be forwarded for story ideas. • Host Media FAM Tours. Media FAM tours are coordinated by TOTA with Destination BC, having a key contact at the community level working with operators and these organizations is an efficient way to utilize Destination BC programs.
39. Media partnerships. As a complement to media relations, strategic partnerships with high- profile media can create a lasting positioning and marketing legacy. In its 2012-2017 Strategic Plan, the TCTS identified national and local media coverage through partnerships with the Globe and Mail, SHAW and other partners (TCTS 2012). Trails BC . Ideally, potential media partners would be in a position to reach out and help deliver the message about the trail and its exceptional potential. The TCT-KVR is visually dramatic so print or digital media with a visual presence of medium is preferred, and there should be relatively good exposure to preferred target markets. Opportunities to complement media partnerships of other trail organizations would provide leverage to marketing. The written agreement would state what each party would provide and set the ground rules for collaboration. TOTA could offer exclusivity of content materials (pictures, b-roll, histories/stories), naming of a signature experience or trail segment, media partner exposure on the website and during conferences, festivals and events, and exclusive interviews with trail leaders. In return, TOTA would seek to receive a series of articles or interviews, media programme devoted to the TCT-KVR or the placement of promotional materials on the partner’s website.
40. Corporate Partnership Program. There are numerous opportunities for negotiating corporate partnerships for the TCT-KVR, with logical links to trail groups, transportation (e.g. air services, airports, transit), major tourism operators (wineries, resorts), recreation, outdoor and health organizations, government (e.g. BC Parks), institutional (e.g. universities, colleges), consumer lifestyle (outdoor stores, bike shops, clothing, fitness), local resource companies (discussed further in Section 4.4.1) and conservation groups. Developing partnerships can be time consuming both setting up and maintaining so a program with multiple potential targets should be kept modest and manageable within the resources of TOTA and its implementation partners. A strategy brief should be prepared, along with a target list drawn from the above, with consideration of the following parameters:
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• The objectives of the program, which should be in three areas: unrestricted capital for trail infrastructure, marketing leverage, visitor services and experience enhancement. • Criteria for screening and recruiting partners. It is not the number of corporate partners that indicates success, the overall value and credibility they bring to the trail vision. • Discussion points on the quid pro quo (i.e. what does each party brings to the table that makes for a win-win situation). • Provide a range of opportunities for the relationships from gift giving to employer- supported volunteering. • Procedures for optimizing and leveraging the partnership. • Procedures for measuring success of the partnership. • Procedures for recognizing and promoting the relationship through communications and marketing activities. 3.6 PRODUCT AND EXPERIENCE DEVELOPMENT
3.6.1 Tours and Experiences
Key Issues In order to complement physical improvements to the TCT-KVR, it will also be necessary to encourage a greater selection of services, like guided and semi-guided tours, that will appeal to domestic and international markets who are interested in experiencing the trail. The survey included 22 respondents who indicated they had guided guests on the TCT-KVR. Another 10 respondents indicated that while they don’t guide directly, they do provide services to guests using the trail. There are dozens more service businesses such as accommodators, wineries, food and beverage establishments, and rental services, who could play a more active role in cultivating tours and experiences on the trail. Front-line tour operators face many challenges building trail business—capital can be difficult to access, marketing reach is limited especially for small outfits, and establishing productive relationships with market intermediaries can take more time and patience than proprietors are willing to invest. The fact that cash flow is constrained by a limited operating season means financial planning is crucial to a successful business model. A market-ready trail requires market-ready and export-ready operators and service businesses. One of the objectives of this Strategy is to use technology and direct improvements to the trail to induce operators to compete and innovate so that visitors have the best possible experience. Increased visitation and spending would then translate directly into increased occupancies and yields, employment and further investment by industry. Creating this virtuous business and investment cycle requires a robust and engaged industry that strives to exceed professional standards of operations, marketing and customer service. This has already occurred in the wine industry and among successful destination resorts across the region, so a critical path has already been paved for guiding the rail trail concept to greater heights.
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Recommended Actions 41. Canada 150 Celebration. Canada will have its 150th birthday in 2017 and various levels of government, communities and the private sector are gearing up to celebrate the event. There are several opportunities for involvement:
• Co-host an already-planned celebration with trail organizations; • Co-host of participate in an already-planned community or regional celebration; and • Co-host an existing or new trail-related event. There are several existing events that could be partnered, including:
• Okanagan Trestle Tours • Kettle Mettle Dirty Fundo Best Practice Rails to Trails Conservancy • Prospero GranFondo Axel Merckx Î p 112 • Challenge Penticton • Oliver Half Iron Triathlon TCTS does not have plans for a celebration because its focus is on trail completion (Kaplan November 29, 2015, pers. comm.). It could, however, be asked to co-sponsor or support a TCT- KVR celebration. The federal government’s Canada 150 Fund is a potential source of support and eligible projects are not limited to celebratory events. A former potential source of funding is the federal government’s Canada 150 Community Infrastructure Program. Applications in Western Canada were closed in June, 2015 but the program should be monitored in case the new government commits new resources to infrastructure investment, which was a major promise during the 2015 election campaign.
42. Fastest Known Time. Fastest Known Time (FKT) is an rapidly growing personal race phenomenon that is especially popular among distance runners who prefer not to engage in traditional races. A route is picked and covered as fast as possible. There is a website Fastest Known Time2 dedicated to record keeping for runners. Sponsors such as North Face and Salomon have followed suit and actively support FKT efforts because the storylines often warrant elevated press and attention. Public awareness is also growing with videos, blogs and other social media involved. And of course once a FKT has been documented it represents a compelling challenge for racers of all stripes. FKT has entered the cycling community now as well—the Katy trail in Missouri documents FKTs for riders (Katy Trail 2015). TOTA could sponsor or co-sponsor a cyclist for the full length (or segments) of the KVR, post a FKT on the website and create an ongoing challenge on the website to generate interest among extreme athletes.
43. Product packaging and itineraries. Travellers are increasingly seeking experiences based on an aggregation of individual products and services into a unified purchase decision. It reflects
2 http://fastestknowntime.proboards.com
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the growing preference among aging travellers especially for the bundling of the entire visitor experience into a simple, single purchase decision. For the destination, this requires the provision of coordinated products and services, when they would normally be provided by individual operators or service providers. The objective of packaging is to offer an integrated, interesting product to encourage visitors to first make the travel decision, second to engage in higher yield product purchases and third to maximize their length of stay. As a regional DMO, TOTA would play a market intermediary role promoting, distributing and selling itineraries through the website, app and other marketing activities. Participating operators must be market and preferably export-ready so that pricing is unified through all digital media and delivery is seamless. The call to action and booking service provided through the website and app is a strong inducement for operators to participate in the package. Supplementary research would be needed to customize itineraries for domestic and international EQ types. In some cases they could be fully guided, Best Practice in others semi or self-guided according to the target profile. The Rails to Trails Conservancy following dimensions can be scoped and then assembled into a Î p 113 set of itineraries that can be featured on the website and linked to the call for action.
• Establish guidelines for participating in itineraries through the web app, including commission structure for bookings made through the Call to Action and protocols for driving traffic through to individual service providers websites (e.g. hotels, rental shops) for visitors who are interested in a self-guided experience. • Compile itineraries matching EQ profiles:
− Free Spirits. Self or semi-guided detailed itineraries, links to dining, wineries, spas, lake and river activities, superior accommodation, emphasize group experience, inform of trail challenges where appropriate (“face the challenge”) since they are willing to take some risk. Amenable to multi-day, point-to-point trail or hub-spoke travel (to take advantage of supplementary local activities). A major market segment globally, BC’s largest segment and Alberta’s fourth. − Authentic Experiencers and Cultural Explorers. Self-guided itineraries, links to parks, museums, campsites, First Nations, settlement and railway history/culture, emphasize the landscape and nature observation and the trail as a journey. Will live like the locals, not luxury or comfort oriented. Amenable to multi-day, point-to-point trail or hub-spoke travel. Major market segments globally, third and fourth-largest segments in BC segment, third and sixth in Alberta. − Rejuventors and No-Hassle Travellers. Guided tours, package pricing, shorter tours, safety conscious, enjoy pampering, hedonistic, better suited to nature observation than culture/history , quality but not luxury accommodations. Single-day tours or multi-day hub and spoke close in to major communities. A quarter of BC and Alberta markets.
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• Identify and recruit participating operators
44. TOTA market research program. TOTA has customized user profiles utilizing Environics Analytics Research that can help operators target trail markets. This research is unique to the Thompson Okanagan and can give operators an edge in their marketing activities. It can help strategic direction and provide information that will support market planning and execution.
45. Operator certification program. TOTA could pattern the program off of Quebec’s Route Verte Bienvenue cyclistes! Best Practice which certifies accommodation establishments within five New Zealand Cycle Trail Î p 111 kms from Route Verte that wish to attract cyclists. Both fixed roof accommodations and campgrounds are included and abide by a relatively simple but consistent set of standards for visitor information, storage, repair, transportation and food service. At campgrounds guaranteed accommodation such as is widely available on US rail trails should be promoted. Certification ensures the use of branded signage and participation in packaging and itineraries.
46. Webinar series for trail products and experiences. TOTA regularly offers webinars to stakeholders that facilitate the adoption of innovative practices and improve the competitiveness of operators. Webinars are cost effective and convenient for operators who are pressed time or who wish to avoid travel. Content could be developed by TOTA for region- specific topics, but existing content for many trail issues and initiatives can be accessed through other organizations such as the American Trails Store3, government agencies, or other services providers. Third-party partners could host the webinars on topics appropriate for trail stewards, communities, tourism operators and guide operators, ranging from funding trails and managing conflicts to event coordination and infrastructure placement.
47. Emerging and niche uses. TOTA should monitor and promote opportunities related to both e-bike handicap use of trails on trail segments where they can be accommodated, especially in urban areas where there are connections to other greenways and transportation corridors. E- bikes are not considered motorized in the conventional sense and are accepted on multi-use trails but of course they are limited in time and distance travelled. They have long been used in Europe, where there are restrictions on speed. The use of this technology requires access to hire stations, storage and battery exchanges, opportunities which could be promoted to local businesses should demand warrant. However, there is considerable controversy especially in mountain biking circles about the legitimacy of ebikes as an acceptable trail use. If properly positioned and used, ebikes could be offered by resorts and bike shops as a soft experience that does not compromise the trail for others while potentially introducing them to other modes of trail use.
3 http://www.americantrails.org/store/webinars/
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3.7 TRACKING PROGRESS
Key Issues Monitoring and evaluation (M&E) is an essential part of any strategy or program. M&E involves the systematic and regular collection of data that allows the organization to establish a baseline, measure change, understand cause-effect relationships, effect the allocation of scarce resources, inform decision-making and communicate with stakeholders and partners. It is really about being relevant, effective, efficient and sustainable. For this strategy and its many initiatives, a set of metrics, indicators and data sources is required as the basis for monitoring. Other than Myra Canyon, there is no documented use of the TCT-KVR and therefore no baseline that could be used to track future change. There are numerous methods and technologies for tracking trail use but each entails costs that to this point in time have not been seen as justifiable by the province or by communities. The fact that use levels are modest on many parts of the trail has contributed to this feeling. Indirect indicators such as VIC enquiries and tour operator client levels can be used but as with any M&E program they have to be explicitly and systematically tracked.
Recommended Actions 48. Logic Model. A simple logic model around which performance measurement can be arranged should be prepared. A typical model would describe inputs, activities, outputs and outcomes, the latter of which should be clearly linked to the goals of this Strategy. Once the outcomes are established, indicators and data sources can be listed. Key data necessary to establish the baseline are described below.
49. Trail counts. It will be necessary to develop baseline use data on key trail segments so future use trends can be documented. RSTBC is in the process of installing counters at several trail points, which will be useful in establishing a current baseline. A methodology can also be developed for estimating resident and visitor use components for this data.
50. Trail surveys. It is also recommended that periodic direct observation surveys be conducted at automated counter locations, or other locations, as necessary. The surveys can be of short duration such as single days for the purpose of building a user profile by residency, mode, age, gender, trip purpose and other trip characteristics. Information on potential trail and experience improvements could also be included. DBC research services could provide assistance in establishing an ongoing survey program.
51. Operator surveys. Periodic operator surveys should also be scheduled by TOTA. Quantitative indicators such as trail use, new investment and visitation will be important for tracking but they will need to be supplemented by qualitative indicators provided by those directly involved in guiding and other providing services to trail visitors.
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52. Visitor Centre tracking. Request that Visitor Centres include TCT-KVR as an information category in their VC statistics. This could provide an additional metric at relatively low cost with the opportunity for additional insights from trail visitors.
53. Annual Forum. Monitoring and evaluation is based primarily on benchmarking and measuring indicators for change over time—it is oriented toward quantifiable metrics. It would be advisable to seek out qualitative feedback from industry and partners about the progress being made on trail development and suggestions for tactical changes to strategic initiatives. An Annual Forum should be held in conjunction with the TOTA AGM and Tourism Summit, where trail interests can gather to share experiences, best practices, marketing programs and emerging trends on rail trails.
54. Market and trail development tracking. Measuring marketing and trail development activities will furnish the data required to inform strategic planning, decision making, partner relations and reporting. The following basic measures can be monitored and included in the reporting process:
− Trail improvements and investments − Trail class (km) − Use (visitation), spending − Website analytics − Participation rates in marketing programs − Number of market-ready businesses − Unpaid media coverage (paid equivalents) − Print distribution − Social media statistics − Industry Feedback − Partnerships established
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4 REFERENCES
4.1 ACRONYMS
AtBC Aboriginal Tourism BC ATVBC Quad Riders ATV Association of BC BCCC BC Cycling Coalition BCORMA BC Off Road Motorcycle Association BEDC Boundary Economic Development Committee BCTFA BC Transportation Finance Authority BTC Bruce Trail Conservancy CRM Customer Relationship Management CTBC Cyclo Touring BC Program CWR Columbia & Western Railway DBC Destination BC FKT Fastest Known Time FLNRO Ministry of Forests, Lands and Natural Resource Operations FRPA Forests and Range Practices Act KVR Kettle Valley Railway LOO Licence of Occupation LRMP Land and Resource Management Plan MOTI Ministry of Transportation and Infrastructure ORV Off-road Vehicle RDCO Regional District Central Okanagan RDMO Regional Destination Management Organization RDOS Regional District of Okanagan-Similkameen RSTBC Recreation Sites and Trails BC SIDIT Southern Interior Development Initiative Trust TAC Trail Advisory Committee TCTS Trans Canada Trail Society TOTA Thompson Okanagan Tourism Association 4.2 LITERATURE CITED
Aboriginal Tourism BC. No date. The Next Phase: 2012-2017 A Five-year Strategy for Aboriginal Cultural Tourism in British Columbia. Adventure Cycling Association. 2015. 10 Indicators that Bicycle Travel and Tourism are Booming — and Changing. Available at: http://www.adventurecycling.org/about-us/media/press-releases/10- new-indicators-that-bicycle-travel-and-tourism-are-booming-and-changing/. Accessed: September 3, 2015. Aestech Consulting Inc. 2000. Trans Canada Trail — Linking Communities Initiative Recreational Route Study — Merritt To Brookmere. Prepared for City of Merritt and Nicola Valley Explorers Society. Bike BC. 2015. BikeBC Funded Projects - Examples. Available at: http://www2.gov.bc.ca/gov/content/transportation/funding-programs-and-
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engagement/funding-grants/cycling-infrastructure-funding/funded-projects-examples. Accessed: November 17, 2015. BC Parks. 2005. Myra-Bellevue Park and Myra-Bellevue Protected Area Management Direction Statement. BC Stats. 2015. 2014 Sub-Provincial Population Estimates. Available at: http://www.bcstats.gov.bc.ca/Files/7b7c178e-da8e-468c-922b-0faae039c8db/2014Sub- ProvincialPopulationEstimates.pdf. Accessed: August 26, 2015. Canadian Heritage. 2015. The Canada 150 Fund. Available at: http://canada.pch.gc.ca/eng/1424795454758. Accessed: November 17, 2015. Canadian Tourism Commission. 2013. Tourism As Canada’s Engine For Growth 2014-2018 Corporate Plan Summary. Carter, Laurie. Corridor Chosen as Site for Okanagan Rail Trail. Available at: http://okanaganlife.com/rail- corridor-chosen-as-site-for-proposed-okanagan-rail-trail/. Accessed: January 20, 2016. Cascade Environmental Resource Group. 2012. Regional District of Okanagan-Similkameen Regional Trails Master Plan. Central Okanagan Regional District (RDCO). 2000. Our Regional Parks: The Official Regional Parks Plan for the Central Okanagan. Central Okanagan Regional District, et al. 2012. Central Okanagan Regional Active Transportation Master Plan. Central Okanagan Trails Alliance. 2015. Master Trails Plan. Critchley, Darren. 2015. Touring the Kettle Valley Railway. Available at: thekvr.com. Accessed: July 28, 2015. Destination BC. 2015a. The Value of Tourism in British Columbia Trends from 2003-2013. Destination BC. 2015b. Thompson Okanagan Regional Tourism Profile January 2015. Elkhashab, Aliaa. 2014. The Path to and Potential of Cyclo-Tourism in British Columbia. The British Columbia Cycling Coalition. Vancouver, British Columbia. Fortis BC. 2015. Community Relations Community Investment. Available at: http://www.fortisbc.com/About/OurCommitments/CommunityRelations/Pages/default.aspx. Accessed: December 16, 2015. Gold Country Communities Society. 2015. Rails and Trails. Available at: www.goldtrail.com/. Accessed: July 28, 2015. Government of BC. 2016. BC Rural Dividend. Available at: http://www2.gov.bc.ca/gov/content/employment-business/economic- development/developing-your-community/community-partners/rural-advisory-council/rural- dividend. Accessed: January 20, 2016.
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Katy Trail. 2015. Katy Trail One Day Riders and Through-Hikers. Available at: http://www.bikekatytrail.com/one-day.aspx. Accessed: December 15, 2015. Langford, Dan and Sandra. 2015. Cycling the Kettle Valley Railway. Available at: http://www.kettlevalleyrailway.ca/. Accessed: July-August 2015. Ministry of Forests, Lands and Natural Resource Operations (FLNRO). 2013. Trails Strategy for British Columbia. Available at: http://www.sitesandtrailsbc.ca/documents/Trail-Strategy-for- BC_V6_Nov2012.pdf Accessed: September 8, 2015. Ministry of Forests, Lands and Natural Resource Operations. 2015. About Recreation Sites and Trails BC. Available at: http://www.sitesandtrailsbc.ca/about/. Accessed: September 8, 2015. Obee, Bruce. 2008. Trans Canada Trail British Columbia. Whitecap Books. North Vancouver, British Columbia. Okanagan Rail Trail. 2015. Latest News Fundraising campaign to begin this fall. Available at: http://www.okanaganrailtrail.ca/news.php. Accessed: December 18, 2015. Phillips Brewing Company. 2015. Phillips Benefit Brew About. Available at: http://benefitbrew.com/bc/about/. Accessed: November 13, 2015. Pynn, Larry. 2014. B.C. government officially kills cyclists’ ‘world class’ rails-to-trails dream. Vancouver Sun, September 26, 2014. Available at: http://www.vancouversun.com/travel/government+officially+kills+cyclists+world+class+rails +trails+dream/10239911/story.html. Accessed: October 17, 2015. QEII Health Sciences Centre Foundation. 2015. Ride the Rails for Cancer 2015. Available at: http://www.ridetherails.ca/faf/home/default.asp?ievent=1135382. Accessed: January 11, 2016. Regional District of Okanagan-Similkameen (RDOS). 2015. Regional Trails. Available at: http://www.rdos.bc.ca/departments/community-services/regional-trails/. Accessed: August25, 2015. Southern Interior Development Initiatives Trust (SIDIT). 2015. Grant Application Overview. Available at: http://www.sidit-bc.ca/grant_applications.html. Accessed: November 19, 2015. Statistics Canada. 2015. December 2014 Location Counts by 2, 3-Digit NAICS and CSD for Employment Size Ranges (Total Only). Business Register Division, Ottawa, Ontario. Tourism BC. 2009. Cycling and Mountain Biking Product Overview. Tourism BC. No date. Mountain Bike Tourism. Thompson Okanagan Tourism Association (TOTA). 2012. Embracing Our Potential. Final Draft February 2012. TOTA. 2015. Initial Findings Trail Variables TOTA Research Pilot Project, August, 2015. Unpublished report.
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Trail Town Program. 2015. About Us. Available at: http://www.trailtowns.org/about-us/. Accessed: November 16, 2015. Trans Canada Trail Society (TCTS). The Trans Canada Trail together connected Strategic Plan 2012-2017 Summary. Westcoast CED Consulting Ltd. 2014. Okanagan Rail Trail Impact Assessment. 4.3 PERSONAL COMMUNICATIONS
Bond, Glenn. Owner, Okanagan Trestle Tours. Telephone interview, November 20, 2015. Gilchrist, Doug. Division Director, Community Planning and Real Estate, City of Kelowna. Telephone conversation, August 17, 2015. Hawkings, John. Director, Recreation Sites and Trails BC (RSTBC). Telephone interview, November 12, 2015. Hotchkiss, Gord. Owner, Giro Okanagan. Telephone interview, November 23, 2015. Kaplan, Trish. Trail Development Manager, Trans Canada Trail Society. Telephone interview, November 19, 2015. Kittmer, Mike. Active Transportation Coordinator, City of Kelowna. Telephone conversation, November 20, 2015. Kruger, Ed. Owner, Monashee Adventure Tours. Telephone interview, November 23, 2015. Moslin, Chris. Boundary Pathways Society. Telephone interview, November 20, 2015. Scott, Chris. Business Advisor, Penticton Indian Band. Telephone interview, November 23, 2015. Shuttleworth, Justin. Parks and Facilities Coordinator, Regional District Okanagan Similkameen. Several telephone conversations, November 2015 to January 2016. Sielmann, Henry. President, Summerland Trans Canada Trail Society. Telephone interview. November 23, 2015. Skerbinek, Angela. Manager, Research, Planning & Evaluation, Destination British Columbia. Email communication, September 18, 2015. Trent, Tennessee. Trails Manager, RSTBC. Several telephone conversations, August 2015 to January 2016.
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4.4 COMMUNITY WORKSHOP ATTENDEES
Christina Lake Cindy Alblas Dawsha Hunt Chris Moslin Sasha Bird Les Johnson Sean Noble Heather Cannell Kim Kinakin Connie Riestener Wendy Darbyshire Leon Lebrun Ciel Sander Bob Dupee Angele Marcoux Kathleen Smythe Cliff Enquist Brian McAndrew Len Strzeler Sara Enquist Phil McIntyre-Paul Serge Touchette Cavan Gates Midway Ross Elliott Leon Lebrun Heather Remillard Sandy Elzinga Ken McWhirter Ciel Sander Vicki Gee Corrine McWhirter Barry Saville Terry Haffeetl Phil McIntyre-Paul Curtis Sharp Pat Henley Jim Nathorst Julie Sharp Bob Jendyk Joyce Oliver Jim Smith Noreen Krueger Al Oliver Ed Smith Pete Krueger Rebecca Relkov Serge Touchette Penticton Paul Barber Helena Konanz John Rasmussen Ron Barkwill Merv Kowalski Gary Reed Roland Dheilly Patti Kowalski Doreen Reed Maria Diakonow Karla Kozakevich Des Reigh Jessie Dunlop Tom Matthews Gail Scott Don Gemmell Eileen Meehan Roy Schmuland David Gregory Doris Muhs Justin Shuttleworth Marilyn Hansen Lisa Navin Eric Sorensen Wayne Harvey Janet Peake Cheryl Wiebe Nora Hunt-Haft Colleen Pennington Lindy Wilson Lisa Jaager Dale Philbrook Mark Woods Andrew Jakubeit Mervyn Philbrook Phillip Young Duane Johns Max Picton Kelowna Carla Carlson Ingrid Jarrett Rosemary Paterson Linda Digby Ed Kruger John Perrot Robert Fine Leon Lebrun Salina Petschulat Trevor Hanna Chris Lewis Henry Sielmann Gord Hotchkiss Stephanie Oslund Serge Touchette Kelly Watt Princeton Frank Armitage Kim Maynard Lori Thomas Vic Bartel Phil McIntyre-Paul Jerome Tjerkstra Bob Coyne Bob Miller Serge Touchette Rosemary Doughty Douglas Pateman Lyle Zimmerman Leon Lebrun Merritt Angela Fountain Phil McIntyre-Paul Anoop Sekhon Terry Frizzell Neil L Menard Murphy Schewchuk Etelka Gillespie Petch Moyes Terry Wardrop Karl Gropp Ginny Prowal Melvina White
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APPENDIX A-IMPLEMENTATION COSTS
Costs for the implementation of this strategy are outlined in Table 3. These are unit cost estimates based on understanding of parameters at time of writing.
Estimated Costs of Implementation
Item Costs Timing Description 2016 Annual 2017‐2022 Organization $15,000 2016‐2017 Primarily legal, administrative for establishing Trust $500,000 2016‐2022 Seed capital for the Trust. $15,000 $15,000 2016‐2022 Meetings and annual forum. Destination $30,000‐‐$40,000 $15,000 2016‐2019 Trail plans for Boundary and Merritt, grant writer Trail costs – to be 2017‐2022 Requires formal capital plan—can vary widely determined according to proximity of local materials Marketing Branding $15,000 2016 Final rail trails brand Signage $20,000‐$30,000 2017‐2022 Need for coordination with communities/stewards Web app $40,000 2016‐2022 Web site and app; no need for proof of concept or technology; pilot or beta program Marketing Content & Cash costs ‐ $50,000 $5,000 2017‐2022 Image and video bank, map guide, historical content Promotion and stories, promotion of experiences, blog, newsletter and travel media relations. Ongoing maintenance and optimization required. Experiences Cash costs ‐ $20,000 $15,000 2017‐2022 Canada 150 Celebrations, Fastest Known Time event, webinar series. Ongoing product packaging, itineraries, and certification program
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APPENDIX B - FIRST-YEAR IMPLEMENTATION
All of the preceding initiatives are considered important in that they address different aspects of trail development, whether they be land use, amenity improvements, industry cooperation or marketing. Even so, there is some logical sequencing that should take place, especially in the first year, that generate some positive momentum and measurable progress. Table 2 presents recommendations that are meant to lay the groundwork for implementation through enhanced organization capacity, partnership development and technology solutions.
Priority Initiatives in Year 1 of Implementation Initiative TOTA/Trust Role DBC Role Organization Trail advisory committee • Lead • Assist—participate in committee First-year work plan • Lead • None Local government endorsement • Lead • Assist--co-sign letter of invitation requesting support Rail Trails Trust • Lead • Assist—provide guidance on scope, mandate and articles of incorporation Policy brief on future TCT-KVR rail trail development • Lead • Assist—review by policy personnel, Policy brief on future rail trails development referral to other ministries for comment, feedback First Nations Partnership • Lead • None MOU with First Nations Coordinated planning with the Kootenays • Assist—participate in and review • Lead—provide policy direction on how communications to involve and integrate rail trail planning and development Working partnership with off-road vehicle organizations • Lead • Assist—participate in discussions with provincial off-road groups Destination Priority trail segments • Lead • None Multi-partner capital plan • Lead • Assist—identify funding options within government, facilitate fund raising
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Initiative TOTA/Trust Role DBC Role Marketing Brand development • Lead • Assist—provide feedback on symbol, wordmark, typefaces and colours Rail trail graphic standards manual • Lead • Assist—review manual drafts Signage strategy • Lead • None Next steps for a technology solution • Lead • Assist—identify best options for obtaining geospatial data sets, preferred Call to Action and social media capabilities Image and video bank • Lead • Assist—coordinate with DBC digital asset management system Trail history and interpretive stories • Lead • None Experiences Canada 150 Celebration • Lead • Assist—help identify event and senior government funding options, participate in the event committee (if formed), identify opportunities for partnering with similar 150 events in other regions Fastest Known Time • Lead • Assist—co-sponsor
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APPENDIX B – BASELINE
STUDY AREA
The Thompson Okanagan region served by TOTA is Figure 4 TOTA Service Area depicted in the map below. This area ranges from Christina Lake and the Shuswap to the east, Cache Creek and Princeton to the west, Mount Robson in the north, and Osoyoos in the south. The Thompson Okanagan is coterminous with the Thompson-Nicola, North Okanagan, Central Okanagan, Okanagan Similkameen regional districts and the western portions of both the Kootenay Boundary Regional District (represented by the Boundary sub-region) and the Columbia Shuswap Regional District (Shuswap Lake and area). The Thompson Okanagan is the traditional territory of the Okanagan people (Syilx), part of the Interior Salish ethnographic group. The KVR and its associated branch lines are located entirely within the Thompson Okanagan, with the exception of the Coquihalla Subdivision between Brodie and Hope, the part of the trail that drops from the Coquihalla Summit and follows the Coquihalla River into Hope. At the eastern terminus of Midway, the Trans Canada Trail follows the Columbia & Western Railway line east to Christina Lake and beyond to Castlegar. TRAIL HISTORY
The KVR, a subsidiary of the Canadian Pacific Railway since 1931, opened in 1915 and was abandoned in portions beginning in 1961, with the final segment falling into disuse in 1989. The core portion of the KVR started in Hope and terminated in Midway. Over time branch lines connected to Spences Bridge (via Merritt), Copper Mountain and Osoyoos. The CWR from Midway east to Castlegar was also sometimes referred to as the KVR. The majority of the KVR’s and CWR’s original routes have been converted to a multiple-use recreation trail, which comprise a good portion of the BC section of the TCT. The TCT was designated in 1992 and the Trans Canada Trail Foundation established the same year. Provincial organizations started to explore routing of the TCT soon after but very little of the trail was formally established before 1996.
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TRAIL DESCRIPTION4
A map of the KVR and its associated rail trail sections is shown in Figure 4. The Kettle Valley Railway section of the Trans Canada Trail extends roughly 482 km from Hope to Midway. When connecting sub-division rail trails are included, the trail length extends well beyond 824 km. Hope to Brookmere - The Coquihalla subdivision between Hope and Brookmere takes about two days to complete on a bike, with few services en route, although there are numerous access points along Highway 5. The route use pieces of the old railway, but much of it has been abandoned or built over by the highway and the Trans Mountain Pipeline. Noted features include the outstanding Othello or Quintette Tunnels just outside of Hope, the 5-km section through Jessica and the 24-km Coquihalla Summit, following the Coquihalla River. Between Coquihalla River and Brookmere the trail mostly follows the Coldwater River. The Summit offers waterfall sprays, great views, a tunnel, former rail snow sheds and interesting remnants of railway structures. Also of interest is the use of Shakespeare character names for the stations. Brookmere to Spences Distance Elevation Bridge - The KVR through Table 2 KVR Sub-divisions (kilometres) the Merritt sub-division, (metres) which is not part of the TCT, Sub-division Low High was built as a branch Hope-Brookmere 91.1 5 1104 connector to the CPR Brookmere-Merritt 47.3 598 962 mainline via the Nicola, Kamloops and Similkameen Nicola-Spences Bridge 75.5 234 598 Railway through to Spences Brookmere-Penticton 174.9 345 1098 Bridge (i.e. the Nicola sub- division), bypassing the Penticton-Osoyoos 58.1 280 345 frequently closed Penticton-Midway 215.0 345 1260 Coquihalla route. Cycling Midway-Castlegar 162.3 439 1291 and hiking traffic on the Brookmere to Merritt trails Source: Langford (2015), Obee (2008), Google Earth is light because of the remoteness and distance from services. Beyond Kingsvale, the trail crosses private property and gates and fences may be an issue. Gold Country Communities Society has developed geocaching opportunities along the route. The trail ends at Merritt Station, where it joins the Nicola to Spences Bridge line. This is a popular cycling and hiking trail, passes through ranch lands, forests, and rocky terrain. However, much of the rail bed has reverted to landowners and First Nations and access is limited in many sections. (Gold Country Communities Society 2012)
4 The majority of this section has been excerpted and condensed from Trails BC (2015), except for the Merritt and Osoyoos descriptions, which are cited separately.
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Brookmere to Penticton - The TCT between Brookmere and Osprey Lake is entirely on the KVR. Major communities include Tulameen, Coalmont, Princeton and Osprey Lake. The scenery changes dramatically from coastal alpine to the drier parkland associated with the Interior Douglas Fir biogeoclimatic zone. Motorized use is said to be extensive in this section and trail conditions challenging for cyclists. The TCT between Osprey Lake and Summerland is almost entirely on the KVR. Trail conditions are generally better than the Princeton area due to less concentrated motorized traffic, however, the trail can be particularly bad in the Demuth-Kirton area west of Faulder. The KVR is still an active railway west of Summerland and the trail ends in Summerland itself. Highlights include orchards, vineyards and the Trout Creek bridge. The trail from Trout Creek south to Penticton is technically a gap in the TCT as the KVR land is being transferred to the Penticton Indian Band. Future access is uncertain and the trail surface is likely to become more and more deteriorated as no maintenance is being performed during the land transfer process. Penticton to Osoyoos – The KVR between Penticton and Osoyoos is known as the Osoyoos subdivision. It follows the edge of Skaha Lake to Okanagan Falls, a section that receives significant traffic (Critchley 2015), and then onto Osoyoos, where traffic drops off. Notable points of interest include wineries and orchards, sandy beaches, warm lakes, fruit stands, the bird and wildlife sanctuary of Vaseux Lake, and south of Oliver, Canada's only true desert. Settlement activity is extensive along the right-of-way and the trail can be challenging to follow with some detouring onto the highway required. Penticton to Midway - The TCT within Penticton makes its way along the shore of Okanagan Lake before continuing north along the KVR through Naramata and up to Chute Lake. This is a very popular stretch of trail with high use levels, and views improve as one heads uphill. Trail Conditions are good between Penticton and Naramata. Highlights include Little Tunnel, Rock Ovens Regional Park, Adra Tunnel (closed but under restoration) and Chute Lake Resort. A new trail management plan for the Naramata-Chute Lake section of the KVR is in development which would separate motorized and non- motorized users along portions of the trail, while providing parking and staging facilities for motorized users. The trail from Chute Lake Resort to McCullough is traversable, although the portion between Chute Lake and Myra-Bellevue Provincial Park has been converted to roadways. The major highlight of the area is Myra-Bellevue Provincial Park, with its extensive trestles and tunnels—the area is also a National Historic Site. Trail use in this area is likely the highest along the TCT. About 1.5 km east of Hydraulic Lake, the trail descends another 20 metres to Summit Lake, before entering the Boundary region - and continuing downhill to the communities of Carmi and Beaverdell. Between McCulloch and Beaverdell the trail is fairly quiet, though some sections have become challenging due to motorized use. Views of the West Kettle River are exceptional and a point of interest is the Cyclist's Rest at Rhone. The trail continues south and then east to Midway along a combination of paved roads, gravel roads, gravel trail and dirt tracks. There is extensive areas of quiet pastureland. The Rock Creek/Westbridge fire in 2015 presents an opportunity for interpretation of fire-
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affected landscapes. Midway is the eastern terminus of the KVR and the western terminus of the CWR. This section of rail trail sees much less traffic but trail surfaces are in good condition. There are also many sections of rail trail that are gated to deter motorized access. Midway to Castlegar - From Midway to Eholt the CWR has reasonably good surface conditions with sand and loose rock. There are exceptional pastoral, cultural and historical interpretive values linked to industrial activities and Japanese internment during WW II. The north-facing forested area can be a dark but after passing through the tunnel, views of the Granby River Valley are exceptional. The trail then continues on to Grand Forks, and follows the Kettle River before climbing the shoulder of Castle Mountain and taking in the views of Christina Lake at the old railway station of Fife. Trail highlights include Hell's Bells in Greenwood, Downtown Greenwood, the Tunnel of Flags, the Trans Canada Trail Pavilion at Grand Forks, the trestle over the Kettle River between Grand Forks and Christina Lake and the connection to the Dewdney Trail and Cascade Highway. The Trans Canada enters the West Kootenays near Farron Station and continues on to Castlegar. This is possibly the most remote part of the KVR/C&W rail trail and the surface varies from hard packed to loose gravel. The trail ends at Hugh Keenleyside Dam. Highlights include the region’s rich history, such as the targeted bombing of Doukhobor leader Peter Verigin in 1924, the 1-km long Bulldog Tunnel, views of Lower Arrow Lake and the old rails preserved and still intact near Castlegar. USE LEVELS
There has been no formal counting of trail use for the TCT-KVR, except for the Myra Canyon section at Myra and at Ruth. Table 5 provides the actual count numbers at Myra from the Myra Canyon Trestle Restoration Society (MCTRS) counters.
Table 3 MCTRS Monthly Total Counter Data at Myra
Month 2008 2009 2010 2011 2012 2013 January 304 394 297 240 209
February 478 432 424 276 487
March 456 988 376 397 876
April 1328 2273 1074 1689 1289
May 7171 6764 4850 5930 5196
June 14771 7398 8937 10048 6228 7729 July 21158 13775 13468 22827 17625 15449 August 23480 16688 14804 20593 18874 22488 September 14759 11079 10695 10865 13496 12179* October 8337 4806 6862 5908 5305 6244* November 1193 1277 1124 641 420
December 142 380 359 389 243
Total 83840 65140 67100 78292 70723 72146 Source: Myra Canyon Trestle Restoration Society (2014) Notes: * Estimates as counter down for several days in each month
The counters are not able to count people walking side by side (a common activity), or a bicycle traveling at speed (another common activity), adding to the conservative nature of the annual count.
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Table 6 provides MCTRS’s visitor calculations based on the assumption that every person who uses the KVR either doubles back and therefore is counted as one visitor and not two visitors, or is counted on the way out of the Myra Canyon at the south end and thus subtracted from the total. Volunteers working on the trail estimate that 50% of all trail users are from outside the Central Okanagan.
Table 4 Total Visitors entering at Myra and at Ruth5
MCTRS Counters 2008 2009 2010 2011 2012 2013 Myra 41920 32570 33550 39146 35362 36073 Ruth 9222 7165 7381 8612 7779 2886 Total 51142 39735 40931 47758 43141 38959 Source: Myra Canyon Trestle Restoration Society (2014)
OWNERSHIP, MANAGEMENT AND PLANNING
Provincial Context In BC, what is commonly referred to as recreation sites and trails are public campgrounds and trails located on Crown land outside of parks and settled areas. They provide recreation experiences within an integrated resource management setting where the land base is managed for a variety of land uses, whether for resource extraction, recreation, fish and wildlife management, watershed protection, and the like. Recreation sites and trails are the responsibility of RSTBC of the Ministry of Forests Lands and Natural Resource Operations. RSTBC is working on a variety of important initiatives and policies to ensure the effective management, safety and enjoyment of BC's extensive recreation resources. Major initiatives include:
Mountain Bike Policy - developed in 2006, the policy recognizes mountain biking as a legitimate and important recreation activity on Crown land, and supports a partnership approach to managing and administering mountain bike trails between the Province and user groups.
Trails Strategy for British Columbia - FLNRO, in collaboration with BC Parks and the Ministry of Transportation and Infrastructure, produced a provincial trails strategy in 2008. It describes an action plan for developing and managing a sustainable, world-class network of recreation trails across the province. The Strategy is linked to several higher- level provincial initiatives, including The BC Jobs Plan, Gaining the Edge: A Five-Year Strategy for Tourism in British Columbia and Aboriginal Cultural Tourism Blueprint Strategy for British Columbia.
Spirit of 2010 Trail - The Spirit of 2010 Trail was a provincial-federal partnership that provided funds to upgrade a network of five abandoned rail corridors linking 18
5 The counter at the Ruth end only gives total counts and must be read manually. This is done every two weeks or so. Typically about 20 t0 25% of the visitors enter at the Ruth end.
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communities: the Kettle Valley Rail Trail, Columbia and Western Rail Trail, Slocan Rail Trail, Cowichan Rail Trail and the Great Northern Rail Trail. The Spirit of 2010 Trail policy says the rail corridors can provide a “unique recreational experience” and defines the “primary activities” as cycling, walking, hiking, horseback riding and cross-country skiing. RSTBC has also acknowledged, however, that motorized use of the TCT-KVR trail is a fact of life and has been so for many years. In August, 2014, a letter to Trails BC by the assistant deputy minister of FLNRO stated that “Despite significant capital investment from the Province, federal government, Trans Canada Trail and dedicated stewardship groups, it has been very difficult to achieve the vision for a world-class network of primarily non-motorized rail trails. Limited operational resources combined with the length and remoteness of the trails, extensive infrastructure maintenance, ongoing use conflicts, and varying community support have presented many complex challenges.” (Pynn 2014) To manage this new reality, the province has an internal policy (Revised Strategic Approach to Rail Trails) that acknowledges motorized use on the TCT-KVR. Legislative authority for managing recreation sites and trails is set out in the FRPA and the Forest Recreation Regulation. Maintaining or developing recreation sites and trails on Crown land requires authorization by RSTBC through provisions in FRPA. Maintenance activities are designed to ensure user safety, provide sanitary conditions, protect the environment, ensure access and convenience, and maintain facilities and infrastructure. (RSTBC 2015) In terms of commercial activity on Crown land, including trails, the Province, under authority of the Land Act, issues tenures such as leases and licences of occupation. The Adventure Tourism Policy defines how tenures are issued, the activities approved under licence and the obligations of the licensee to maintain management plans and report usage. By law, commercial tenures do not prohibit or otherwise restrict public use and enjoyment of the tenure area. Trail development and management is also supported through the Land and Resource Management Planning LRMP) process. Higher level plans that set out management direction and policies for the majority of the TCT-KVR in the Thompson Okanagan include the Okanagan-Shuswap LRMP and the Kootenay Boundary Regional Land Use Plan.
Local Government In its Regional Trails Master Plan the Regional District of Okanagan Similkameen (RDOS) defined the future direction, policies, priorities, standards and strategies for the existing and future potential linear parks and trails and support for a regional trail network (Cascade Environmental 2012). Among key action items was the limiting of motorized use along the KVR within populated areas and policies supporting the KVR as a recreation and transportation corridor. The Rails to Trails & Parks Committee have a mandate to secure tenure on portions of the KVR within the boundaries of the RDOS and to develop a linear park strategy that links communities, parks, schools and shopping areas. The Click, Hike & Bike application on the RDOS website includes maps and trail information that allows users to interactively access aerial photos, trail descriptions and access points (RDOS 2015).
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The Central Okanagan Trails Alliance, representing 12 outdoor recreation groups in the Kelowna area, has a mission to improve the Central Okanagan trail networks for the benefit of residents and visitors. It has recently released a Master Trails Plan identifying the lack of coordination among trail users and the funding/maintenance of trails as fundamental challenges for the region (Central Okanagan Trails Alliance 2015). It strongly advocates a leadership role by Regional District of Central Okanagan (RDCO) in trail development and more integrated marketing of the Kelowna area as a bicycle tourism destination. RDCO has identified regional trails and greenways in its Regional Parks Plan, including the establishment of a regional trail system (RDCO 2000). RDCO, in partnerships with its member municipalities and electoral areas, produced the Regional Active Transportation Master Plan in 2012 that reinforced the contribution the regional rail to trails network makes to sustainable transportation options for residents and visitors (RDCO 2012). It is noted that the planning focus is placed on ‘quick wins’, corridors which require little improvement or those that may be placed at higher priority within local plans. The City of Kelowna is pursuing its Rails with Trails Pathway on the abandoned Kelowna Pacific Railway right-of-way between Vernon and downtown Kelowna. It reinforces objectives previously indentified in the Official Community Plan (Kelowna 2030: Greening our Future) and the Kelowna & Area Mountain Biking Strategy. The City has completed the first two phases of paving from Gordon to Spall drives, which will ultimately extend to the UBC Okanagan Campus, the Kelowna International Airport and points north. The City has also completed a way-finding strategy and has begun installation of structures on a loop route within the city. This initiative forms the basis for the nearly completed Regional Way-finding strategy developed on behalf of partners, Peachland, West Kelowna, Westbank First Nation, Lake Country and RDCO. Next steps for both strategies includes formalizing them into development servicing bylaws, local ped and bike plans and planning and operations processes within each organization. These steps are to ensure sustainability and growth of the program in the region (Kittmer 2015, pers. comm.). There is also a rapidly expanding effort on a Trail of the Okanagans that would ultimately link Sicamous to Osoyoos. While this initiative is not specific to the TCT-KVR, it is worth noting that the tourism and economic development potential of an approximate 1,000+ km rail trail system transecting the Okanagan Shuswap and further linking to the Lower Mainland and southern Kootenays would be a truly word class recreational and visitor experience. In the Boundary region, the Kootenay Boundary Regional District (KBRD) has been active in economic development under guidance of the Boundary Economic Development Committee (BEDC). BEDC has been supportive of numerous tourism and cultural initiatives including the Branding the Boundary (boundarybc.com), regional tourism action plan (which prioritizes TCT development and the completion of a trail inventory), signage and way finding for visitors, and a heritage restoration and revitalization program.
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The Brookmere to Merritt and Spences Bridge segments of the KVR are in the Thompson-Nicola Regional District (TNRD). Merritt is the only municipality along this route, much of which has been at least partially lost. There is no current or planned development of these trails by Merritt or the TNRD and provincial jurisdiction, as previously noted, does not reside with RSTBC. In summary, the concept and vision for adding to and improving the TCT-KVR, as a transportation, recreation and tourism corridor is widely supported by local government planning and where appropriate is being linked to higher level plans of the provincial government.
The Trans Canada Trail The TCT, founded in 1992, will eventually comprise 500 individual trails linking every province and territory and hundreds of communities from the Pacific to the Arctic and Atlantic oceans. In BC the TCT extends from the southern tip of Vancouver Island to the B.C./Alberta border. It includes four of the Spirit of 2010 Trails as well as community and regional trails, BC Parks trails, community pathways and forest roads. The TCT represents a collaborative effort between the regional, provincial and federal governments, the Trans Canada Trail Foundation, community group support, and the Trails Society of British Columbia (Trails BC). In BC, the trail is primarily Crown land, with component sections owned by different agencies, including the TFA, DBC, FLNRO and Ministry of Environment (MOE). RSTBC plays a role in managing public recreation on those portions of the Trail under the jurisdiction of FLNRO. Table 7 shows the owner and management status along the length of the TCT-KVR. The majority of the right-of-way is provincial Crown land managed either by FLNRO, BC Parks, MOTI or the BCTFA. The designated legislation is Section 56 of FRPA, in the case of FLNRO, and a provincial park under the BC Parks Act where BC Parks is the authority. The portion of the TCT-KVR within Myra-Bellevue Provincial Park is subject to the Management Direction Statement, which underscores the recreation and tourism values of the KVR (BC Parks 2005). For many stretches through the Thompson Okanagan, FLNRO has negotiated partnership agreements with RDOS either through Section 118 of FRPA or via a Licence of Occupation (LOO) through the Land Act. Two municipalities, Grand Forks and Penticton, own the trail outright within their boundaries, while another, Princeton, holds a LOO from the Province. Other than some scattered pieces of private property between Beaverdell and Rock Creek, the only part of the original right-of-way with an uncertain future is that which passes through Penticton Indian Band (PIB) reserve adjacent to Penticton. Currently, this stretch is in the process of being returned to the PIB and is neither maintained nor patrolled. The official TCT is adjacent to Highway 97 in this area.
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Table 5 TCT-KVR Ownership Status
Section Ownership Agency Designation Notes Castlegar to Gilpin Grasslands Park Crown FLNRO FRPA 56 Trail Gilpin Grasslands Parks Crown BC Parks Provincial Park Gilpin Grassland Parks to Grand Forks Crown FLNRO FRPA 56 Trail City of Grand Forks Municipality Municipality Municipal Trail Grand Forks to Myra Bellevue Park Crown FLNRO FRPA 56 Trail Some private property (Beaverdell-Rock Creek) Myra Bellevue Park Crown BC Parks Provincial Park Myra Bellevue Park to Penticton Crown FLNRO FRPA 56 Trail RDOS FRPA 118 Partnership Agreement Penticton Municipality Municipality Municipal Trail Penticton to Kaleden Crown FLNRO none Subject of addition to reserve negotiations with PIB Kaleden to OK Falls Crown FLNRO none RDOS Land Act LOO OK Falls to Osoyoos Crown FLNRO None RDOS Application for Land Act LOO Penticton to Summerland Crown MOTI Trail adjacent to Hwy 97 Penticton to Summerland CP Rail CP Rail none Subject of (original right-of-way) transfer negotiations with PIB Summerland Municipality Municipality Municipal Park 4k section in Conkle Mountain Park, some trail on urban roads Summerland to Osprey Lake Crown FLNRO FRPA 56 Trail RDOS FRPA 118 Partnership Agreement Osprey Lake to Princeton Crown FLNRO FRPA 56 Trail RDOS Land Act LOO Princeton Crown FLNRO FRPA 56 Trail Municipality Land Act LOO Princeton to Brookmere Crown FLNRO FRPA 56 Trail RDOS Land Act LOO Brookmere to Spences Bridge Crown MOTI/TFA none Brookmere to Hope Crown MOTI/TFA none Some sections managed by Spectra Energy Notes: FLNRO Ministry of Forests, Lands and Natural Resource Operations, FRPA Forests and Range Practices Act, LOO Licence of Occupation, MOTI Ministry of Transportation and Infrastructure, PIB Penticton Indian Band, RDOS Regional District of Okanagan Similkameen, TFA Transportation Finance Authority.
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FIRST NATIONS
Appendix C shows Indian Reserves adjacent to the TCT-KVR. The original right-of-way between Penticton and Summerland is currently subject to return to reserve or private property negotiations with the Penticton Indian Band. RSTBC is advising against public and visitor use, while Trails BC has noted that once the transfer is complete, agreements will be needed to permit future public use of the trail. Currently Highway 97 is the alternate but the Ministry of Transportation does not endorse this route. In other areas, the trail is adjacent to Osoyoos Indian Band reserves between Oliver and Osoyoos and several Merritt area reserves between Merritt and Spences Bridge. The trail passes through First Nations traditional territories including, in the Merritt area, Lower Nicola, Schakan, Cook’s Ferry, Nooaitch and Coldwater, in the Similkameen, Upper Similkameen and Lower Similkameen, and in the Okanagan, Osoyoos, Penticton and Westbank. Of these, only Westbank is engaged in the treaty process. COMMUNITIES AND SERVICES
The major communities associated with the trail, from east to west, are Christina Lake, Greenwood, Grand Forks, Midway, Rock Creek, Beaverdell/Carmi, Kelowna, Naramata, Penticton, Oliver, Osoyoos, Summerland, Princeton and Merritt. Community population estimates for 2014 appear in Figure 5. Total regional population is approximately 277,000 with two-thirds of this clustered in the Kelowna area and another quarter in the south Okanagan (BC Stats 2015). The western and eastern flanks of the KVR are sparsely populated.
Figure 5 Community and Region Population Along the TCT-KVR, 2014
Spences Bridge 130
Merritt 7,461 Chute Lake Grand Summerland (Kelowna) 121,422 Hope Princeton 120 Midway Forks Christina Lake Castlegar
5,701 2,770 11,126 Penticton Beaverdell/Carmi) 667 4,048 1,168 7,864 34,233 Greenwood 708 Oliver 4,824 Osoyoos 4,879 Source: BC Stats (2015)
Similar to the distribution of population, the availability of infrastructure and services that cater to visitors and trail users is highly concentrated in the Okanagan sub-region and diminishes in the Similkameen and Boundary sub-regions. Table 8 shows the number of locations in five industries that provide visitor services in the Thompson Okanagan. Accommodation services, food and beverage services, performing arts, heritage facilities and amusement, gambling and recreational industries are listed. A total of 803 establishments are
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allocated to four sub-regions, Boundary, Okanagan, Similkameen and Nicola, with accommodation and food and beverage accounting for the large majority. In terms of spatial distribution, 69% of all establishments are clustered in the south Okanagan, 12% in the Boundary and 8% in the Similkameen and the remaining 12% in the Nicola. It is noted that each of these industries caters to residents as well as visitors and there are other industries not listed, such as gas stations, gift and retail stores and transportation services not listed that cater to visitors. A scan of service directories from DMO websites in the Boundary, Okanagan, Similkameen and Nicola indicate that the total number of service establishments is considerably higher, but quantification is difficult due to definitional issues. A spatial depiction of how key different services and infrastructure are distributed along the trail is provided in Appendix C. The indicators mapped include Visitor Centres (VCs), accommodation, forest recreation sites, trail heads and trails, parks and protected areas, and major attractions (golf courses, activities, festivals/events). Services are congregated in the populous areas of the Okanagan but even then there are trail segments that are not proximal to service corridors, with the exception of the Osoyoos sub-division between Penticton and Osoyoos. Whereas services tend to be clustered in the Okanagan, forest and recreation sites and other trail networks proliferate in the remote areas. The number of recreation sites near the trail is much higher in the western sections (Similkameen and Coquihalla) than in the Okanagan or Boundary. There are several locations, notably Coquihalla, Brookmere and especially McCulloch, where there is numerous direct connections between the TCT-KVR and local trail networks. Cell coverage is an important service where there is an expectation by visitors that mobile devices can be used as part of their experience. Appendix C shows network coverage along and adjacent to the trail. Service is widely available in major communities and coverage is widespread in the south Okanagan, but at least half of the route has no service at all. TOURISM BUSINESSES
The large majority of trail use on the KVR is self-guided although the lack of traffic data does not allow the proportion to be quantified. The survey conducted as part of the research phase of this project identified 22 businesses that conducted guided tours of the TCT-KVR and another 10 that provided trail-related services to trail users. Google searches and scans of business directories on community DMO websites indicated a similar quantum. Most guiding services and major events are organized by a handful of major operators in the Okanagan and Boundary regions, however, there are also several outbound tour operators marketing kettle valley railway tours.
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Table 6 Number of Business Establishments in TOTA Sub-regions
Industry Boundary Okanagan Similkameen Nicola Region Total No. % of Total No. % of Total No. % of Total No. % of Total
711 - Performing arts, spectator sports 5 7% 60 79% 2 3% 9 12% 76 and related industries
712 - Heritage 4 21% 8 42% 4 21% 3 16% 19 institutions
713 - Amusement, gambling and 11 12% 72 76% 5 5% 7 7% 95 recreation industries
721 - Accommodation 31 11% 182 66% 25 9% 38 14% 276 services
722 - Food services and 43 13% 230 68% 28 8% 36 11% 337 drinking places
Total 94 12% 552 69% 64 8% 93 12% 803
Source: Statistics Canada (2015) Notes: Boundary = Greenwood, Grand Forks, Midway, Kootenay Boundary Areas B, C and D Okanagan = Osoyoos, Oliver, Penticton, Summerland, Okanagan-Similkameen Areas A, C, D and F, Indian Reserve Penticton 1 Similkameen = Keremeos, Princeton, Okanagan-Similkameen Areas B, G and H Nicola = Merritt, Thompson-Nicola Areas I and N
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VISITOR INFORMATION AND SIGNAGE Potential visitors to the Thompson Okanagan can obtain information on the TCT-KVR in digital and hardcopy format from a variety of sources, such as the provincial government, local government, visitor centres, trail organizations, stewardship and community groups, tour operators and individual businesses. Government and non-government organizations that have mandates for trail development, promotion and use, and which provide online trail resources, include the following:
Recreation Sites and Trails BC
Trans Canada Trail Foundation
Trails BC
Dan and Sandra Langford, Cycling the Kettle Valley Railway
Cycling BC, BC’s Trans Canada Trail
British Columbia Trails & British Columbia Trail Maps, https://www.trails.com/findarea.aspx?state=BC
Trail Peak, http://www.trailpeak.com/
Regional District Okanagan Similkameen, Click Hike & Bike Each website provides a different set of resources, including mapping information, that may or may not be up to date. Each features a different brand or set of brands. The RSTBC promotes the TCT-KVR as part of the Spirit of 2010 initiative, an additional brand that does not appear to be used by local visitor service organizations in the Thompson Okanagan. The TCT website allows download of trail shape files that can be used for personalized mapping and GIS. The RDOS Click Hike & Bike is the most comprehensive of any of these sites. It features KVR branch lines that are not part of the TCT and of course many other trails that are not part of the rail trail system. Click Hike & Bike uses the Geocortex Viewer for Silverlight employed by Imap BC and many local governments around the province, including RDKB and TNRD. Major traveller information websites like www.britishcolumbia.com and HelloBC do not feature the TCT-KVR as a single trail experience and do not provide map or trail-specific information. A search for TCT-KVR will provide links to local VCs and community web pages. An overview of local sources of trail information is presented in Table 9. The TCT-KVR term is being used in almost of these materials, although the exact terminology can vary; for example KVR is referred to as railroad trail, rail trail and in one case just trail with no reference to rail. Full trail descriptions are in short supply so further resources would be needed by self-guided trail users. In the case of the RDOS, the on-line version of the publication contains significantly more data than the print version.
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Table 7 TCT-KVR Visitor Information
Document Title Published by Website Dimensions Cover Brands Refers to: Trail KVR TCT Map Descrip. Trans Canada Trail British Whitecap Books none 5 ¼ x 8 ½ Trans Canada Trail yes yes yes detailed Columbia softcover book Official Guide of the Trans Canada Trail
The Kettle Valley Express Vicom Design Inc. http://www.kettlevalleyexpress. pages 49 Kettle Valley Express yes yes yes partial Adventure Travel Guide to com four colour South Central BC 8 1/2 x 11 staple bound
Boundary Trails guide & Grand Forks Chamber of http://www.boundarychamber. n/a none yes yes yes yes maps Commerce com/ (digital) distance Boundary Vacation Guide Black Press http://www.boundarybc.com pages 63 none yes yes yes no 2015 Official brand and website for four colour Kettle Boundary country. 8 1/4 x 9 3/4 Valley staple bound Railroad Trail
Grand Forks Valley Grand Forks Community http://www.gftrails.ca/Walkabo n/a none No yes yes yes Walkabout Trails Society ut.html (digital) Refers to CPR
Christina Lake Trails Map and Christina Lake Explore the http://www.christinalake.com/ 18 x 24 four Christina Lake yes yes yes yes Guide Outdoors colour Explore the Outdoors distance, folded map ascent/de scent, difficulty Welcome to the Regional RDOS http://www.rdos.bc.ca/departm 10 x 20 RDOS yes no yes partial District of Okanagan‐ ents/community‐ four colour Click Hike and Bike Kettle focus on Similkameen services/regional‐trails/ folded map Valley Rail access Trail and highlights
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Document Title Published by Website Dimensions Cover Brands Refers to: Trail KVR TCT Map Descrip. No Title Penticton and Wine http://www.penticton.org/ n/a Penticton and Wine yes no yes no Country Chamber of (digital) Country Commerce Time to breathe Penticton Town Directory http://issuu.com/towndirectory n/a none yes yes yes no Publications /docs/2015_penticton_map_bo (digital) KVR ok centenary Summerland Hiking & Biking Summerland Chamber of www.tourismsummerland.com 11 x 17 Summerland yes yes yes partial Trails Commerce four colour Summerland Kettle folded map Chamber of Valley Commerce Trail
Summerland Map Town Directory http://issuu.com/towndirectory 16 x 17 1/2 none yes yes yes no Publications /docs/2015_summerland_map four colour KVR folded map centenary
Similkameen Valley Maps Town Directory http://issuu.com/towndirectory 16 x 17 1/2 none yes yes yes no Publications /docs/similkameen_valley_map four colour _2014 folded map
Trans‐Canada Trail Explorer: Virtual Outdoor http://www.virtualoutdooradve DVD none yes yes yes yes Myra Station to Penticton Adventures ntures.com/guidebook‐ products.html#TCT
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THOMPSON OKANAGAN VISITOR ACTIVITY
As seen in Table 10, in 2012, the majority of overnight travellers to the Thompson Okanagan were BC residents (70%), followed by Canadians from the rest of Canada (17%), US travellers (6%) and other international travellers at 7%. In terms of spending, the proportions are somewhat different with BC residents spending less on average that other Canadians, US and international travellers. American travellers had the highest daily expenditure, but their trip length was considerably shorter than other Canadians and international travellers. Together, BC and Alberta residents account for 83% of all visitors to the Thompson Okanagan and 72% of total spending.
Table 8 Thompson Okanagan Visitor Volumes and Spending, 2012
Total % Change (2011-2012) Share of Total
Over/N Spending Nights Over/N Spending Nights Over/N Spending Nights visitors ($000s) (000s) visitors visitors (000s) All 3,827 $1,140,998 13,598 0% -8% 1% 100% 100% 100% travellers
BC 2,695 $598,802 7,816 7% -12% 10% 70% 52% 57% Residents
Other 639 $325,384 3,304 -19% -4% -19% 17% 29% 24% Canadian Residents US 218 $72,906 752 -7% -9% 1% 6% 6% 6% residents
Other 276 $143,907 1,726 -2% 2% 7% 7% 13% 13% residents
Source: Destination BC (2015)
Close to half of all visitors to the Thompson Okanagan stay with friends and family (Table 11). Interestingly, BC residents and other Canadians are less likely to stay with friends and relatives than either US or international visitors. For paid accommodation, US and international visitors prefer fixed- roof facilities, whereas BC and other Canadian visitors are much more likely to stay in campgrounds and RV parks.
Table 9 Thompson Okanagan Region Visitors Accommodation Preferences, 2012
Primary Accommodation BC Residents Other Canadians US Residents Other International Friends and Family 47% 49% 51% 62% Hotel 11% 18% 21% 26% Motel 4% 6% 12% 2% Other Commercial Fixed 10% 8% 7% 1% Roof Camping/ RV Parks 16% 13% 7% 9% Source: Destination BC (2015) Note: The sum will not equal 100% as not all non-paid accommodation is included in the table.
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Activities undertaken by visitors while they are in the Thompson Okanagan region in 2012 are shown in Table 12. BC residents and other Canadians tend to participate primarily in outdoor activities, while US residents and Other International visitors prefer a mix of cultural and outdoor activities. International visitors, including those from the US, have a strong preference for national, provincial or nature parks. Cycling ranks 13th among BC Resident activities and 14th among Other Canadians.
Table 10 Thompson Okanagan Region Visitors Activity Preferences, 2012
BC Residents Other Canadians US Residents Other International 1 Beach Beach National, provincial or National, provincial or nature park nature park 2 Hiking or backpacking Hiking or backpacking Historic site Historic site
3 Camping National, provincial or Museum or art gallery Zoo or aquarium nature park 4 National, provincial or Boating/ canoeing/ Camping Museum or art gallery nature park kayaking 5 Boating/ canoeing/ Wildlife viewing or bird Boating Boating kayaking watching … … … … …
12 Cycling Downhill skiing or snowboarding Fishing Fishing 13 Sports event as a Cycling Theme or amusement Casino spectator park 14 n/a n/a Sport/outdoor activity Sport/outdoor activity
Source: Destination BC (2015) Note: n/a not available
CYCLING TRENDS
There are many trends influencing cycling and trail usage in Canada, from increasing participation rates due to the benefits of an active outdoor lifestyle, to changing demographics and growing diversity of users. The growing economic benefits of cycling and trail use derive from its function as an activity or as a mode of transportation, both of which generate many associated health and environmental benefits, and its expanding role as a leisure and travel pursuit. Markets are expanding and prompting new and expanded trail/route networks, facility improvements and product development at all levels. Major trends driving change in this area include the following:
Cycling tourism is an emerging global sector, with more organized product and tour offerings, event development and recognition as an adventure tourism option.
The economic impacts of cycling tourism are being acknowledged by national and regional bodies and the research is leveraging investment into strategic assets that encourage local participation as well as enhanced travel activity. The European Union, United Kingdom, Scotland, the Netherlands, Denmark, New Zealand, Australia, numerous US states and Ontario
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and Quebec have all conducted studies and developed investment and marketing strategies to expand their tourism sectors.
Cycling networks continue to grow on a global basis. The Euro-Velo network has 14 major routes with 45,000 kms of in-place trail/pathway. The US Bicycle Route System features 6,800 miles in 15 states. Quebec’s Route Verte is close to 5,000 kms and annually attracts approximately $100 million annually in visitor spending. (Elkhashab 2014)
Regional bike networks are being actively linked to a scenic, cultural, and historic assets to enhance destination appeal.
Short tours and stays in major centres are blossoming in the US. The Bicycle Tour Alliance has researched best practices for short stays and day trips.
Guided group tours are popular among North American companies, but self-guided tours, a less expensive option often offered in Europe, is expected to grow in popularity. In these tours, the company arranges lodging, transportation and route guidance but the traveller ride the tour on their own. This makes bike touring more accessible and affordable to a larger market.
In the US federal and state agencies are developing policy and program support for cycling travel. For example, the park systems of seven states have adopted a “no turn-away” directive for travelling cyclists, so self-guided cyclists always have a place to stay at state parks.
Many communities are investing in “bike share” systems where cyclists have the ability to pick up and drop off at different stations.
Large multi-day bike events are exploding in popularity in North America. The Grand Tour in Quebec and Ride the Rockies (Colorado), among many others, regularly attract hundreds of thousands of participants, and generate hundreds of millions of dollars in economic impact and charitable contributions.
Cycling related non-profits associated with bike tourism are experiencing growth in line with the overall expansion of cycling tourism. Velo Quebec (La Route Verte), the European Cyclists federation and the Adventure Cycling Association are expanding their memberships and knowledge bases which collectively contribute to the growth in cycling tourism. (Adventure Cycling Association 2015) CYCLE TOURISM IN BC
Destination BC consumer studies indicate that, on average, approximately 10% of Canadian travellers, 11% of US travellers and 18% of overseas travellers participate in cycling, biking, or bike touring while visiting BC (Skerbinek 2015, pers. comm.). Destination BC has not profiled cycle tourists in BC since 2009 and even then the data was drawn from Statistics Canada’s Travel Activities and Motivations Study (TAMS) for the 2004 and 2005 period. Highlights from the profile of cycling and mountain biking pleasure travellers include the following: 89
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More likely to be male than female, although among Canadians participation is relatively balanced;
Age profiles are diverse with heavy concentrations in the 18-34 and 45-54 age groups, and participation among those +65 is also significant;
Mountain biking is more likely to attract the younger age groups;
Majority of participants have household incomes above $60,000 and have post-graduate education;
Just under 1 million of the 5.6 million Canadian visitors to BC (17%) participated in a cycling activity, while 5%, or 270,00, indicated it was a primary overnight trip motivator.6 Just under 1 million of the 7 million US visitors to BC (14%) participated in a cycling activity, while 5%, or 350,000, indicated it was a primary overnight trip motivator;
BC is seen as an appealing cycling destination by North American visitors to this province;
Canadian and US cycling travellers are more likely to travel in summer and winter than the average traveller;
Cyclists tend to have high levels of participation in other outdoor activities, with the most popular crossover activities included hiking (52%), camping (44%) and fishing (43%). In terms of other outdoor and cultural activities, Canadian visitors enjoyed swimming in lakes, and sunbathing/sitting on a beach, while for US visitors, visiting national/provincial parks and strolling cities were most popular. (Tourism BC 2009)
6 The TAMS survey represented a two-year period.
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REGIONAL MARKETS
Traditionally, tourism markets have been looked at largely in terms of their demographic and geographic characteristics, and their activity participation. TOTA’s decision to license the Canadian Tourism Commission’s Explorer Quotient® (EQ) tool has allowed the region’s stakeholders to understand the social and travel values that drive demand and the corresponding need to develop and position tourism product as “experiences” rather than commodities. The regional strategy identified three EQ market segments with a high propensity for travel that are particularly relevant to the Thompson Okanagan: Free Spirits, Cultural Explorers, and Authentic Experiencers.7 The emphasis on understanding visitors from a values perspective and the CTC’s corresponding focus on developing experiences is integrated with the Thompson Okanagan strategy. Profiles of the BC and Alberta markets by EQ type and targets, bicycling participation rates and major city markets are presented in Figure 6 and Figure 7, respectively. Approximately two-thirds of BC residents, which represent approximately 70% of all visitors to the Thompson Okanagan, fall into four EQ types, Free Spirits, Authentic Experiencers, Rejuvenators and Cultural Explorers. When the 1,769,727 residents of the province who participate in bicycling are profiled separately, the distribution by EQ types is practically unchanged. Understandably, municipalities with high population levels represent key target areas. The profile of Alberta households shares similarities with their BC counterparts, but there are also some notably differences. Two of the top four types in Alberta, Authentic Experiencers and Free Spirits, also rank in the top four in BC, although their shares are smaller. In contrast, No Hassle Travellers and Gentle Explorers make up close to 40% of all Alberta households, whereas in BC these types when combined account for around 15% of households. As in BC, when the 1.6 million number of cycling participants among Alberta residents are profiled, the distribution of EQ types is very similar to that of the overall population. The evaluation of the EQ research indicates that in BC and Alberta, which collectively account for as much as 85% of all visitors in the Thompson Okanagan, the dominant psychographic types tend to be the same for the total population as they are for the bicycling population. This is a reflection of relatively high participation rates which attenuates differences in bicycling as a preferred activity among the different types. But there are also some clear differences between the two provinces in terms of dominant EQ types. This has obvious implications for marketing programs and how industry engages consumers in each province to build regional visitor use of the TCT-KVR.
7 Further details on the customer profiles – their social and travel values and what activities appeal to the different traveller types are included in Appendix B.
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Figure 6 BC Household EQ Types, Biking Participation and Major Geographic Markets
100%
Virtual Travellers 75% Gentle Explorers Personal History Explorers No Hassle Travellers Cultural History Buffs 50% Cultural Explorers Authentic Experiencers Rejuvenators 25% Free Spirits
0% Total BC Total BC Households Biking Population
Biking Population+18 1,769,727 • Free Spirits Major EQ • Authentic Experiencers • Richmond • Rejuvenators Major Markets • Surrey Types Cultural Explorers • Vancouver • Source: TOTA (2015)
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Figure 7 Alberta Household EQ Types, Biking Participation and Major Geographic Markets
100%
Virtual Travellers 75% Personal History Explorers Cultural History Buffs Cultural Explorers Rejuvenators 50% Free Spirits Authentic Experiencers Gentle Explorers No Hassle Travellers 25%
0% Total Alberta Total Alberta Households Biking
Biking Population+18 1,600,305 • No Hassle Travellers Major EQ • Gentle Explorers • Calgary Types • Authentic Experiencers Major Markets • Edmonton • Free Spirits Source: TOTA (2015)
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APPENDIX C – MAPS
Figure 8 Indian Reserves
Source: Imap BC (2016)
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Figure 9 HelloBC Accommodation Facilities
Source: Imap BC (2016)
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Figure 10 Forest Recreation Sites
Source: Imap BC (2016)
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Figure 11 Trails and Trail Heads
Source: Imap BC (2016)
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Figure 12 Parks and Protected Areas
Source: Imap BC (2016)
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Figure 13 Visitor Centres
Source: Imap BC (2016)
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Figure 14 Tourism Activities and Services
Source: Imap BC (2016)
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Figure 15 Tourism Opportunities
Source: Imap BC (2016)
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Figure 16 BC Network (Cell) Coverage
Source: Imap BC (2016)
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Figure 17 Okanagan Rail Trail (Kelowna Pacific Rail Trail)
Source: Carter (2016)
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APPENDIX D - TRAILS BEST PRACTICES
This section provides an overview of best practices that have been identified in relation to the management and marketing of the trail experience. Despite the substantial growth of trails and trails related activities both within Canada and elsewhere, there has been little written to formally document this area of good practice. The focus has tended to be on the actual planning and construction of trails, rather than on practices associated with leveraging the trail as an asset for tourism and economic development. This gap will be addressed to some extent in current work that is being undertaken by the European Travel Commission and the World Tourism Organization (UNWTO) on the identification of best practices and marketing tools for the promotion of transnational themed tourism routes, including trails. In the meantime, the dissemination of trails related practices and solutions tends to be through conferences and symposiums such as the American Trails 2015 International Trails Symposium which attracted 760 attendees from 48 US states and 17 countries. The following discussion is largely focused on rails to trails initiatives, but where practices from other types of trails are of value, these too have been highlighted. The emphasis is not on looking at a series of trails from a holistic perspective, but rather on identifying specific practices that are likely to be critical success factors in the development of a long-distance trail experience. STRONG PUBLIC SECTOR SUPPORT AS A BASIS FOR COLLABORATION
Developing long distance trails generally involves crossing multiple jurisdictional boundaries which in itself can present issues in developing and marketing the trail experience. A strong basis for effective collaboration is essential. Where public sector support for trails development is highly visible, there is clear evidence that this plays a significant role in kick starting the momentum, facilitating elements of development, and providing the much needed impetus to establish partnerships and alliances.
Case-Study: Nga Haerenga, the New Zealand Cycle Trail The recent growth of trail and rail trail development in New Zealand has been substantial. Following the 2008 global recession, the Government allocated $50 million8 to implement cycle trails throughout New Zealand – from end to end. At the outset there were only three rail trails open to the public, and only the Otago Central Rail Trail provided opportunity for longer distance travel. However, the success of the latter was well documented9 and was an influential factor in the instigation of the project.
8 Now amounts to almost $55 million of Government funding in total.
9 E.g. Otago Central Rail Trust, Otago Central Rail Trail: Economic Impact and Trends Survey 2008. Research has been ongoing and work undertaken in 2011 indicated a 40% increase in users to 14,000, a 23% increase in daily per person expenditure, a growth in total output from $7.2 million to $12.3 million, and a growth in employment (FTEs) from 75 to 121. (Otago Central Rail Trail User Survey 2010/2011). The most recent work (User Survey 2012/2015) indicated a 15-16% decline on 2011 but still showed significant growth since 2008. Per person expenditure had increased by over 5% from 2011 and 30% since 2008. 104
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The initiative, known as Nga Haerenga, the New Zealand Cycle Trail (NZCT) project, was designed to act as an economic catalyst and had three primary objectives:
• To create jobs through the design, construction and maintenance of the cycle network; • To create a high-quality tourism asset which will enhance New Zealand’s competitiveness as a tourism destination and provide on-going employment and economic development opportunities for regional economies; and, • To maximise the range of complementary benefits that the cycle network provides to a wide range of New Zealanders. This includes events, recreational and health benefits.
The success of the project is noteworthy. Today a series of 23 sections totalling 2,575 kms have been funded and each of these trails is called a “Great Ride”, recognising that they are premier rides, predominately off-road, that showcase the best of New Zealand in terms of landscapes, environment, culture and heritage. The trails cater to a spectrum of users from recreational cyclists to ardent mountain bikers. Using cycling to boost an ailing economy has inherent risks, but in this case the evidence to date suggests that the project has indeed had a marked impact on local economies. Government funding continues to be directed toward the project and in August 2015, the Prime Minister and Minister of Tourism John Key has indicated that the trails are boosting economic growth in the regions with reports from individual trails indicating that more than 1,200 jobs have been created. “Figures also indicate at least 60 new businesses have been established as a result of the Great Rides being built, and over 40 businesses have expanded their operations to cope with the new demand from cyclists”10. Trail use has grown, particularly from international markets and this market is proving to be one of high value with international cycling visitors spending approximately $3,800 on their visits compared to the average of $2,500, and 22% indicating that they spend more than $5,500. In the development of each trail element, the Government works with local partners and at least $30 million of co-funding has been secured from regional stakeholders. One other partner, the Automobile Association, believes that the New Zealand Cycle Trail national project will play an important role in stimulating domestic tourism, which has lagged behind the growth of international tourism. Again preliminary evidence is indicating new demand. In a sample of four trails that are part of the Nga Haerenga project, an estimated 132,000 people cycled them in the four months up to March 2013, with 100,000 on the 99km Queenstown trail alone. The more challenging Mountains to the Sea trail, 317km from Tongariro National Park to Wanganui, attracted 8,000 cyclists during the same period, 87% of which were domestic visitors to the area11. Off-peak season use has increased. Moving forward with the Network Expansion Project, on-road cycle touring routes are also being added to the New Zealand Cycle Trail, with the long-term goal of developing a nationwide cycle network that will allow local and international visitors to explore all of New Zealand by bike.
10 August 28, 2015, https://www.beehive.govt.nz/release/pm-announces-further-funding-alps-2-ocean-cycle-trail
11 Ministry of Business, Innovation & Employment, New Zealand, December 2013, Nga Haerenga – The New Zealand Cycle Trail Evaluation Report
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Case-Study: Route Verte, Québec The Route Verte is a concept that has been under development since 1995. It currently offers 5,300 kms of bikeways linking over 400 municipalities across the various regions of Québec and has become a very strong catalyst for the development of cycling tourism. At the outset the Government of Québec announced that it would collaborate with Vélo Québec on the planning and construction of the Route Verte, investing $88.5 million over ten years to develop the network. Vélo Québec has overseen the development of the Route Verte on behalf of the Government, and coordinates planning, inter-regional cooperation, communications and promotion of the initiative. The Route is marked with signs standardized by the Québec Ministry of Transportation. The concept has been developed and expanded in a number of different ways, including by:
• Using public right-of-ways (abandoned rail corridors, towpaths, hydroelectric right-of-ways); • Paving shoulders to make roads safer for cyclists; • Identifying certain rural roads with little traffic as “designated cycling routes.”
The level of collaboration that underlies the project has been a significant factor in its success. The cooperation of various regional authorities (including regional development councils, regional county municipalities, regional tourist associations, regional sports and leisure agencies) is organized through regional committees. In combination, the total that has been invested in the project over the period 1995 to 2010 has amounted to $240 million. Baseline studies assessing the economic impact of the Route in 2000 indicated that Route Verte cyclists spent a total of $95.4 million. Looking ahead, it was estimated that following the inauguration of the Route Verte in 2006, the amount spent annually by users would increase to $134 million, and that this spending would generate over $38 million in government revenues and help support 2,861 jobs (person years)12. A 2010 report estimates that annual spending on accommodation, food and transportation far exceeds $100 million per annum, and is double that when spending on bicycles, clothing and accessories is taken into consideration13. BRANDING
The branding of a trail should underlie the entire visitor experience associated with the trail from signage and information panels, to the website, social media and other customer-facing components. The brand will ultimately promote recognition of the experience and should differentiate the trail or network of trails. The most prominent visualisation of the brand on the ground will be in the signage associated with the trail. Carried out effectively, a branded way finding system provides much more than orientation and navigation. It can also be the basis for storytelling and should deepen the relationship between
12 http://www.routeverte.com/e/retombees_e
13 Vélo Québec, Bicycling in Québec in 2010
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124 Thompson Okanagan Regional Rail Trails Tourism Strategy the trail user and the trail itself. As much has been written about the technical elements of way finding and the development of trail signage strategies14, the following case-studies focus less on signage as an attribute of a successful trail, and more on examples of well executed branding.
Case-Study: Nga Haerenga, the New Zealand Cycle Trail It is hardly surprising that with the significant commitment to developing trails as an economic driver, considerable emphasis would be put on the branding and positioning of these trails15. Nga Haerenga means ‘the journeys’, both in a physical and spiritual sense and is synonymous with the type of experience that the New Zealand Cycle Trail is offering. The name also has the potential to capture the historical essence of the trails, and the brand has been designed to promote recognition of each trail as an element of a world class national system of cycle trails. The values underlying the brand speak to the exceptional experience that the trails will offer:
• The promise: The New Zealand Cycle Trail is a whole new take on exploring New Zealand • The core belief: To truly experience the wonder of New Zealand you need to immerse yourself in it. • The role of the New Zealand Cycle Trail organization: inspire and challenge people to discover and connect with New Zealand in a whole new way. • The offer: The New Zealand Cycle Trail is a world class network which includes the Great Rides of New Zealand, all distinct and special in their own way.
Each Trail that is accredited as a New Zealand Great Ride has met initial criteria ensuring a world class cycling or mountain biking experience. The benefits of the Trail system have been clearly defined and each Trail is designed to provide as many of these benefits as possible:
14 RailTrails Australia, 2004, Signage Development for Rail Trails: A guide to good practice for the design of signage for rail trails
New York State Office of Parks, Recreation and Historic Preservation, 2010, Trail Signage Guidelines for the New York State Park System
15 September 2012, The New Zealand Cycle Trail: Brand Rules and Guidelines for Use
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• World Class cycle trails • Breath taking views • Relaxed fun or healthy exertion • Fresh tastes of local food, wine, beer • Unexpected delights every day • Discover interesting histories, art and craft • Variety of trails from easy to advanced • Meet the locals along the way • Sense of achievement at the end of the day’s ride • Making remote parts of New Zealand more accessible • Go green • Time to connect with friends, family and the places you visit
The use of the logo is restricted to the Great Trails and only Official Partners can use it for marketing purposes. The significance of the brand and its underlying values has been clearly highlighted to those using it, to ensure that visitors who ride the trails know what to expect and that there is consistency in how the New Zealand Cycle Trail is presented at a national and international level.
Case-Study: Vennbahn Cycle Route, Europe The Vennbahn Cycle Route, one of Europe’s longest converted railway embankment bike tracks, has been developed as a tourism product that can maximize the rail bed asset, the region’s scenic beauty and its cultural heritage. The 125 km trail passes through Germany, Belgium and Luxembourg and is part of the EuroVelo – the European cycle route network consisting of 18 transnational routes. In developing the route, careful consideration has been given to four elements: the natural offer; infrastructure, services, and marketing. A well-defined brand mark has been developed and is core to all marketing and signage activities. The logo depicts vanishing railway sleepers, the route’s extended way, its slight gradient, and people on the move. It is highly visible on all online and offline collateral and on associated infrastructure, including bicycles that are available for hire. The logo has shaped the look of the consumer and trade show stands, and the use of the yellow for the clothing of the marketing representatives increases the visibility of the product.
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http://www.vennbahn.eu/en
STORYTELLING AND TRAIL INTERPRETATION
The importance of revealing the story has been highlighted in the Thompson Okanagan 10-year regional tourism strategy16. Promoting the stories of the natural and cultural heritage plays a significant role in helping the visitor connect with the destination and in enhancing the overall experience. This is as applicable to trails as it is to destinations and highlights the importance of strategic interpretive planning in developing a trail as a visitor experience. An interpretive plan prods, digs, and reveals. It moves beyond factual information to offer new insights into what makes an area special. It reveals the subtle and the sublime. It creates venues that engage your visitors and help them grasp the points you want to get across. It requires looking at a site from multiple perspectives, from management to maintenance, from existing audiences to target audiences. In the end, what emerges is a thoughtful, systematic strategy to pique interest and capture the hearts of people17.
Case-Study: Vennbahn Cycle Route, Europe There is not much left to remind one of the quantities of freight that once rolled up and down the Fen-Rail between Aachen and the north of the Grand Duchy. A handful of deserted station buildings, as in Raeren, Walheim or Sourbrodt, the occasional rusting wagon, coach or locomotive, a few signals, frozen in time … these silent witnesses are all that remain of a glorious past18. Storytelling, however, can bring the past to life and the Vennbahn has made this a core element of the visitor experience. The history of each section is portrayed through the use of customised comic illustrations.
16 TOTA, November 2012, Embracing our Potential – a Ten-Year Tourism Strategy for the Thompson Okanagan Region: 2012-2022
17 http://www.americantrails.org/resources/planning/interpretive-master-plan-Rigby.html
18 http://www.vennbahn.eu/en/das-projekt/
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Complementary products are now being developed that includes audio tours and a new Vennbahn film “Vennbahn – A Path of Transmission” won the ‘Golden City Gate 2015’ prize at ITB for the category of TV commercials. This film was developed in partnership with the East Belgium Tourism Agency and presents an emotionally charged and visually intense view of the former railway’s history and its modern destiny as a cycle route, criss-crossing three frontiers – a tale of transmitting something of value from one generation to another19. QUALITY CERTIFICATION AND OFFICIAL PARTNERSHIP PROGRAMS
The trail is the basis for a visitor experience. To promote and develop the concept of an experience requires much more than the trail infrastructure and its promotion. It requires consistency of quality in all the related services and activities – a factor that is clearly addressed in trails and trail networks that demonstrate success and a strong impact on local and regional economies.
Case-Study: Route Verte, Québec Vélo Québec has developed a quality certification program to assist in addressing the issue of consistency and to ensure that the needs of cyclists are met. Bienvenue cyclistes! Certification is open to accommodation establishments within five kms from Route Verte – B&Bs, hotels and campgrounds – that wish to attract cyclists. The program provides greater visibility for these businesses and certifies that they are offering bike-friendly services on the basis of the meeting the following criteria20: At B&Bs, hotels and other establishments:
19 http://www.vennbahn.eu/en
20 http://www.routeverte.com/e/certification_e
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• A covered and locked space where bicycles can be stored at night. • If food service is available, high-carb meals with larger-than-average portions of fruits and vegetables. • A pump and tools for making minor repairs. • Information on local bicycle repair and rental outlets and regional tourist information centres.
At campgrounds:
• Camping spaces for visitors with or without reservations as long as they are travelling exclusively by bicycle. • A sheltered location where touring cyclists can eat during bad weather. • A pump and tools for making minor repairs. • Information on local bicycle repair and rental outlets and regional tourist information centres.
The program identifies the basic requirements but a number of Bienvenue cyclistes! facilities have developed a range of related services, such as baggage transportation, while others are collaborating with tourism and economic development partners to play a role in creating local bike routes. These initiatives are further strengthening the Bienvenue cyclistes! TM brand. Participation in the certification program is on the basis of an annual fee that varies from $142 to $342 depending on the nature and size of the accommodation establishment. Today there are approximately 500 members in the network.
Case-Study: New Zealand Cycle Trail Official Partner Programme In a similar manner the NZCT’s Official Partner Programme has been created to facilitate the delivery of a quality experience, enhance the country’s reputation as a premier cycling destination, strengthen the brand of the NZCT, and provide local businesses with an opportunity to leverage the focus on cycle trails. The Programme was launched in 2011 and now has over 400 Official Partner businesses. To become an Official Partner, a business must meet and maintain certain cycle-friendly standards. These include selling or promoting products or services that relate to the NZCT; providing a warm welcome and a high level of customer service for cyclists; and providing useful first-hand knowledge about the NZCT, including maps and brochures21. The NZCT website has highlighted a series of business success stories to demonstrate the benefits from participating in the program, profiling operators that provide cycle hire and guiding services, repair servicing, cycle packaging, related ferry services, and hospitality support for local events associated with trails. The program is not limited to local operators, but includes a number of national partners such as AA Traveller and Interislander (New Zealand’s ferry service provider). The searchable trip planning elements of the website clearly profile the various partners.
21 http://nzcycletrail.com/official-partners/official-partner-programme/
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USING TRAILS AS THE BASIS FOR DEVELOPING NEW EVENTS
Developing new events associated with trails has the effect of promoting the trail experience and utilizing the trail infrastructure to create new revenue within the adjacent communities.
Case-study: Rails to Trails Conservancy, United States The Rails-to-Trails Conservancy (RTC) is a non-profit organization dedicated to creating a nationwide network of trails from former rail lines and connecting corridors to build healthier places for healthier people22. The organization has over 160,000 members and supporters, and serves as the national voice for 30,000 miles of rail-trails and multi-use trails, and more than 8,000 miles of potential trails waiting to be built. The organization is involved in a wide range of trails related activities from trail building services and policy work, to promotion, research and trail mapping. One particular activity that RTC engages in as a trail building tool is the organization and promotion of Rail-Trail Sojourns. These premier RTC biking events are designed to celebrate open trails and draw attention to gaps in would-be trail systems that, if completed, could result in innumerable benefits (economic, health, social, environmental and much more) for their local regions. These events have influenced the creation and growth of numerous regional trail alliances and tangibly demonstrate the potential for economic return. In 2014 the Greenway Sojourn brought 300 riders together for a 307 km six-day trip on three renowned rail trails: the Panhandle Trail, the Montour Trail and the Great Allegheny Passage. It is designed to allow participants to stop and explore the communities and attractions along the way. The cost to participate varies from approximately US$590-$690.
Case-Study: the Bibbulmun Track, Australia The Bibbulmun Track stretches 1,000 km through the heart of the South West of Western Australia. While only partially a rail-trail, this long-distance track aligns closely with the travel routes of the Bibbulmun Aborigines, and is for walkers only. The Track takes walkers through towering karri and tingle forests, down mist-shrouded valleys, over giant granite boulders and along breathtaking coastal heathlands. It passes through many of the most beautiful national parks of the south west forests and coastline23. It offers a wide range of experiences from a short stroll to an epic eight week adventure, with some sections having many days between permitted access points (up to four days) and long distances between towns (the longest being 12 days). The Bibbulmun Track Foundation is an incorporated, not-for-profit organisation established to provide support for the management, maintenance and marketing of the Bibbulmun Track. While the Department of Parks and Wildlife, acts as Manager of the Track, the Bibbulmun Track Foundation is recognised as the primary focal point for community-based support and involvement, and has primary responsibility for promoting the Track to potential walkers and maintaining the Track through
22 http://www.railstotrails.org/about/about-us/
23 https://www.bibbulmuntrack.org.au/the-track/
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130 Thompson Okanagan Regional Rail Trails Tourism Strategy a volunteer maintenance program. As part of its mission, the Foundation has responsibility for the development of tourism opportunities and sees events as a key element of its work. A variety of events to suit all ages and fitness levels are offered from guided walks to learning how to cook creatively on a fuel stove. An events calendar is published twice a year and is also available online24. It promotes a range of weekend events, and offers ‘highlights’ itineraries (a combination of day walks with off-track accommodation and transportation between the Track and accommodation each day), together with themed events and age specific hikes (e.g. 60+; Walking with Mum; Walking with Dad etc.). Most of the events have a cover charge, and would appear to be highly popular given the numbers that are currently showing as ‘full’. In addition to this range of activities, the Foundation promotes the Bibbulmun Team Challenge, allegedly the most unique physical and mental team building challenge in Western Australia. Sixty- four participants take part each year, and many organizations and corporations enter a team on an annual basis. DEVELOPING AND PROMOTING A HOLISTIC PRODUCT
The trails provide an infrastructure for a range of activities. Developing a quality trail experience involves thinking well beyond the actual infrastructure and anticipating the visitor’s needs, trip planning requirements, and the complementary services that enhance the experience and increase participation rates.
Case-Study: Vennbahn Cycle Route, Europe A primary objective underlying the development of the Vennbahn Cycle Route was the promotion of rural development, active tourism and local employment. The Route was planned as a holistic concept that looked at a range of elements from the outset – including branding and online and offline marketing; storytelling, signage and information exhibits designed to meet the needs of tourists; infrastructural projects (cycle bridge, picnic areas and shelters, safe-road crossings, illuminated tunnels); ‘complementary infrastructure’ (480 km of mountain bike paths, 3 bike parks etc.); complementary services (a cross-border network of e-bike hire stations – 150 e-bikes available in 2013, the development of bed+bike accommodation, bike shuttle, innovative cuisine options); audio tours to interpret the unique cultural and natural heritage; and, packaging through the East Belgium Tourist Agency. A new “Vennbahn Plus” Tour Planner has just been developed with information on 16 connecting tracks and all the associated attractions. Given this focus on developing a holistic concept, it is hardly surprising that the Vennbahn Cycle Route has won international recognition and a series of awards in 2013, 2014 and 2015.
24 https://www.bibbulmuntrack.org.au/walk-the-track/events-calendar/
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Case-study: Railtrailsnz.com, New Zealand This website is a gateway to five of New Zealand’s best grade 1 & 2 multi-day trails. The mission of the initiative is to provide our customers with the best possible EASY cycling experiences in New Zealand. Each trail in whatever location will provide a consistent level of support and service, providing you the confidence to cycle with any of our trail members. The collaborative aims to offer a complete and easy to organize cycle vacation package and a one stop source of contact for:
• Quality cycles – rental of comfortable and well-maintained bikes. • Trip planning and route guide information on where to ride, where to stay, how far, current weather conditions, trail surface, what to see and do, including access to guides. • Free one-stop accommodation booking service – with easily accessed information on what is available, when and how much. • Luggage transfers through the use of a daily shuttle service. • Trail shuttles – for those travelling one way and wishing for a return shuttle. • Independent or supported tours. • Fully guided tours offering insights into local stories and experiences.
The portal takes the visitor through to templated websites for each of the five rides and offers the user a wide range of ride options, trail maps, accommodation, cycle hire, shuttle services, and special offers etc. THE USE OF TECHNOLOGY
The use of technology for trip planning and the enhancement of the visitor experience is largely dependent on the effective use of a comprehensive database and the capability to layer information on maps in an innovative and visually pleasing manner. Examples of best practice show that innovative technological solutions are required at a wide range of levels, from national and international trip planning tools highlighting all trail opportunities within a jurisdiction, through to planning tools for an individual trail and sections within it, and finally to mobile-focused uses of technology to improve the experience while on the trail.
Case-study: http://www.biroto.eu/en/ Biroto.eu provides a comprehensive searchable database for 518,382 km of cycle paths in Europe. it includes 651 official cycle routes and 349 individual cycle tours of members, and points of interest relating to cycle friendly accommodation, sights and attractions, information points, bicycle repair shops, ferries, bike lockers and charging stations, cycling guides and travel reports from members of the biroto community. Biroto.eu is a ‘community’ website and individuals can add to the data base as well as use its resources. 114
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For each cycle path and each tour there is an interactive map and the elevation profile of the path, downloadable GPS tracks, information about cyclist-friendly accommodations (Beds4Cyclists), and local attractions and resources along the path. The Vennbahn Cycle Route and the related information can be viewed at: http://www.biroto.eu/en/cycle-route/europe/vennbahn-cycle-route/rt00001291 The tour information for each route is available to download as a gpx file for registered users of biroto. For anyone who wishes to edit the route, the track points can be amended using appropriate software, such as GPSies (http://www.gpsies.com). Software of this nature can be used for the compilation of tracks from multiple sub-tracks and will allow users to add additional information such as elevation to each track point. (A review of the GPSies website and mapping shows that this free software is already well used with BC – the map interface that is being populated is OpenStreetMap.) Once the biroto file has been downloaded, the user can continue to use the action menu to access information and identify the location of accommodation, attractions or related tourism infrastructure, and related descriptive text. The database includes an accommodation rating system that is based on ratings that reflect the needs of cyclists, and many of the hyperlinks give you the opportunity to zoom in on the exact location of the facility or attraction.
Case-Study: the Bibbulmun Track, Australia The Bibbulmun Track website has a comprehensive trip planning component. The Track has been subdivided into nine sections, with each section providing Google-based mapping with a toggle legend that can show towns, access points, campsites, accommodation and food & beverage services, local transport operators, equipment suppliers, internet access provider, tourist attractions, wineries, tours, visitor information centres, realignments, diversions, and inlet crossings25. A distance calculator, descriptive text on highlights and attractions, a gallery of images, information on maintenance issues and diversions, and groups currently booked to be on site are all provided for those planning a trip.
Case-study: Hadrian’s Wall Trails App, England The free app is designed to improve the visitor experience of the 118 km trail Wall. The development of the app was commissioned by the Hadrian's Wall Trust – a charitable trust set up to manage all aspects of the World Heritage Site for the long-term benefit of local and regional communities, including contributing to the social and economic benefit of communities through the development of sustainable tourism and a sense of place. The Trust has recently completed a major project involving the conservation of several sections of the Wall at risk and improvement of access. To complement this work, the new app has been designed to enable visitors explore a number of major conservation projects along the Wall through the eyes of different characters – John Clayton the 19th century antiquarian who did much to preserve the Wall and reveal its secrets; Brenda Armstrong, a local farmer; a modern day Stonemason who repairs the Wall and Praefectus Arthitecti, a Roman
25 https://www.bibbulmuntrack.org.au/trip-planner/
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133 Thompson Okanagan Regional Rail Trails Tourism Strategy soldier engineer who was tasked with building the Wall on the orders of emperor Hadrian. The app is available on both iOS and Android platforms and went live at the beginning of September 2014. The characters take the visitor through time and space to bring a different angle on the history and significance of Hadrian’s Wall past and present – text and audio. The App is designed for use at various locations along the Wall. All information is stored within the app, so a data signal is not required to use it. However, if GPS is enabled on the smart phone, the app can then be used to identify closest points of interest to any specific location. The app is integrated with Twitter and Facebook, and provides a note-taking option. While the app is a standalone component of the visitor experience, it has also been designed to integrate with the Wall Face Exhibit26. The exhibition has been organised jointly through a partnership of organizations across the Wall and is the first time that all 11 Roman sites and museums across the 150 mile Roman frontier zone have joined together to put on a single Wall-wide exhibition. The project provides visitors with the opportunity to view art from the National Portrait Gallery and is increasing visitation to museums and Wall alike. The initiative’s use of technology – mobile, online web presence and use of social media is entirely integrated and together present a dynamic onsite and offsite visitor experience and a new online learning resource for schools. The following screen shots show the various components of the online experience.
26 Wall Face is funded by Arts Council England through its Renaissance strategic support programme and supported by the National Portrait Gallery and by partners from across Hadrian’s Wall, part of the international Frontiers of the Roman Empire World Heritage Site.
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Case-study: Bruce Trail App, Ontario The Bruce Trail App is a more conventional trail user app available for use on iOS and Android devices. It allows users to plan, track, and log their hikes on Canada's oldest and longest marked footpath. The app can be downloaded at a cost of $19.99 and ensures that hikers and cyclists are carrying the most up-to-date Bruce Trail information. If the smart phone has GPS functionality, location functions and tracking will still work without internet Wi-Fi connection. The ability to track location allows the visitor to readily access further details on campsites, parking lots and side trails. Where GPS functionality is unavailable, the trail user is still able to access the Bruce Trail topographic maps. The ‘Did You Know?’ section provides news and information about the Trail and the app alerts the user of any changes to the Trail. FRIENDSHIP TRAILS
The Friendship Trails project is an initiative of the World Trails Network. The Network brings trail associations, trail advocates, enthusiasts and professionals together from around the world to foster global collaboration and networking, while promoting an understanding of the culture of walking and
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Case-study: Bruce Trail Conservancy, Canada The Bruce Trail Conservancy is the only Canadian member of the Network and has pioneered the concept of Friendship Trails in Canada. The Conservancy has now established ‘friendship’ with seven international trails, and in each case a section of route on the Bruce Trail and a corresponding route on an international trail have been designated as a Friendship Trail, displaying special signs to mark the partnership. The Bruce Trail Conservancy’s current Friendship Trails include:
• The Jeju Olle Friendship Trail (South Korea) • The Lebanon Mountain Trail Friendship Trail (Lebanon) • The Cotswold Way Friendship Trail (England) • The Offa's Dyke Path Friendship Trail (Wales) • The Rim of Africa Friendship Trail (South Africa) • The Pacific Slope Trail (Costa Rica) • The Bibbulmun Track (Australia)
FUNDING INITIATIVES
Developing a sustainable funding strategy for long distance trails and trail networks is always fraught with challenges. Failure to generate the necessary operating costs for maintenance, marketing and the development of the visitor experience can result in the gradual demise of the trail experience and the under-utilization of a prime tourism asset. The following case-studies are examples of initiatives that appear to make some contribution to the sustainability of trails, but it is unlikely that any one approach on its own will be adequate.
Case-study: crowd funding The concept of crowd funding is new to the trails ‘arena’, but examples have already demonstrated that it can potentially provide the kick-start funds that are often required to get a project off the ground.
• A UK mountain biking organization, Ride Sheffield, has successfully used crowd funding to create the country’s first ever crowd funded trail. The Lady Cannings Trail on the Sheffield and Peaks border opened in July 2015 following a successful campaign to raise over £15,000. Alongside the generosity of local riders and cycling clubs, the initiative resulted in the development of a partnership with Sheffield based outdoor equipment specialist Go Outdoors who have committed £60,000 to the ongoing development of the project over the next three years, on top of their initial contribution to the opening phase. • Operation Trail Marker has been launched by Glendale Parks & Open Space Foundation, in collaboration with Los Angeles Magazine, to improve trail signage in the Verdugo Mountains 119
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of Glendale, California through raising $20,000. The Verdugos offer over 40 kms of trails and fire roads for hiking and biking but lack a good system of trail signage. The crowding funding initiative is still underway.
Case-study: trail advocacy user groups Trail Fund NZ27 is an interest/advocacy group that has been established to support the development and maintenance of trails (in this case mountain biking trails) through memberships, donations (with tax receipts), the sale of online merchandise, and partnerships with retail and service partners that have agreed to donate 1% of transactions carried out with Trail Fund NZ partners to the fund.
Case-study: user fees Examples of user fees are difficult to identify. Trails are often seen as a public good, and user fees for non-mechanised activities are unusual. However, the following have been noted:
• The Route of the Hiawatha rail trail in Idaho is 24 kms and has ten tunnels and seven high trestles. User fees to ride or walk are in place - $10/adult or $49/adult for a season pass. A pay- as-you go shuttle service is also available. In addition a range of bicycles are available for hire. Access can be controlled, which in itself assists with putting the user fee system in place, and the trail, trailhead and facilities have specific hours of opening. • The George S. Mickelson Trail is a 175 km non-motorized multi use (bike, horse, hike) rail trail in the Black Hills region of South Dakota, with over 100 converted railroad bridges four rock tunnels, and approximately 14 kms of additional branch trails. All trail users aged 12 and over are required to have a trail pass. The trail passes are available for $3/day or $15 for an annual pass and can be obtained from authorized vendors or at self-sale trail pass stations located at all 15 trail heads. Passes must be located on the person or the bicycle and failure to do so results in a fine. In addition, there is an annual 3-day ride that covers almost the entire trail. A registration fee of $180 includes trail pass, shuttle service, snacks, three meals and one voucher for dinner in an adjacent city. The event sells out. • Other US rail trails that charge a user fee include the 82 km Bike Prairie Spirit Trail in Kansas, the 52 km Elroy-Sparta State Bike Trail in Wisconsin, the Cannon Valley Rail Trail and the 193 km Mesabi Trail – both in Minnesota.
Case-study: trail services – booking ‘commission’ The Hauraki Rail Trail is one of the five rail trails profiled by RailTrailsNZ. The Hauraki Rail Trail Charitable Trust is responsible for maintaining the trail and is fundraising to complete a new section of the trail with estimated costs of NZD $4 million. In the case of this particular trail, 15% of each booking for services through RailsTrailNZ is paid to the Trust at no additional cost to the user, for trail maintenance and improvement. This arrangement is not in place with the other four trails.
27 http://trailfund.org.nz/
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Case-study: sponsorship The Bibbulmun Track Foundation has a strong sponsorship program in place with partnerships with a range of organisations and businesses. Partnership levels vary from AUD$50,000 as Premier Sponsor through to $2,500 for Bronze level. Newmont Boddington Gold is a Premier Sponsor. The company is a gold mining and processing operation adjacent to the Bibbulmun Track. The sponsorship is used to fund the activities of the Foundation’s volunteer 'Eyes on the Ground' maintenance program. The Bibbulmun Track is managed and maintained locally along its length by the six Department of Parks and Wildlife districts through which it passes. This role is shared with the Foundation’s volunteer program. The Track is divided into 147 maintenance sections, varying in length from 5-10km and volunteers are trained to look after a section. This sponsored maintenance program contributes significantly towards ensuring that the Track offers a world-class walking experience. The program involves 350 volunteers. Further information on the role of each sponsor is available on the website28.
Case-study: the Entertainment Book The Bibbulmun Track Foundation29 has partnered with the Entertainment Book to attract additional funds. Twenty per cent of the purchase of every membership is donated to the Foundation. CONCLUSION
As can be seen from this review of best practices, there are many factors to be considered in developing a world-class rail trail visitor experience. The quality of the rail trail infrastructure and its ongoing maintenance are obviously key to its success, but building the experience will require a significant focus of effort on all the other elements: the branding, marketing and promotion; the signage and provision of information for trail users; the online trip planning attributes and the use of mobile technologies to enhance trip planning and the overall experience; the partnerships with local communities and businesses to develop complementary services and deliver a holistic product; and, the collaboration that will be required to put a sustainable business model into place. It is this integrated public-private partnership and strategic approach to the development of trails that is the hallmark of the many trails profiled in this section and the basis of their success.
28 https://www.bibbulmuntrack.org.au/get-involved/partnerships
29 The Bibbulmun Track Foundation has been featured in a number of these case-studies. Data available from 2011/12 shows a breakdown of the organisation’s funding model for that year. Thirty-eight per cent of the Foundation’s gross income came from earned income including walking breaks, tours, guided walks, hire gear and merchandise sales; 14% from sponsorship; membership fees contributed 10%; fee for services from Western Australian Department of Environment and Conservation contributed 11%; and 27% came from other income generated by donations and fundraising.
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APPENDIX E – ACKNOWLEDGEMENTS
Acknowledgements This process has been facilitated by Thompson Okanagan Tourism Association with the assistance of Lions Gate Consulting, Tourism Planning Group, Terra Firma Digital Arts and Phil McIntyre-Paul. Supporting organizations include Destination BC, Recreation Sites and Trails BC, Trans Canada Trail Society, BC Cycling Coalition and Cyclo Touring BC Program.
Experiences Advisory Committee The Experiences Advisory Committee played a key advisory role from the outset of the project in 2015 through to its completion in 2016, and TOTA thanks each member for their invaluable contribution and enthusiasm during these months. Carol Suhan, Manager, Power Sense Services, Fortis BC Craig Campbell, Instructor, Adventure Studies, Thompson Rivers University - Adventure Studies Chris Lewis, Manager, Visitor Sales and Service, Tourism Kelowna Henry Sielmann, Chair, The Trail of the Okanagans Hans-Jurgen (Jack) Becker, Director, BC Cycling Coalition / CycloTouringBCProgram John Hawkings, Director, RSTBC, Ministry of Forests, Lands & Natural Resource Operation Marsha Morrish, Visitor Services Manager , Tourism Penticton Robin Lowe-Irwin, Operations Manager, Princeton & District Museum & Archives Romina Rooney, Account Manager , Green Tourism Canada Tennessee Trent, Trails Manager, RSTBC, Ministry of Forests, Lands & Natural Resource Operation Trevor Hanna, Director of Hospitality, Kettle Valley Steakhouse & Wine Bar Brian McAndrew, President, Vicom Design Gord Hotchkiss, Owner, Giro Okanagan Byron Noble, Owner, Noble Adventures Ciel Sander, Trail Coordinator, Trails to the Boundary Society Jim Bishop, Director, B.C. , Trans Canada Trail Ayn Lexi, West Kelowna, Okanagan Outdoor Adventures Ltd Heather Klatt, Instructor, Health Programs, Nicola Valley Institute of Technology
TOTA Project management and oversight was provided by Ellen Walker-Matthews and Simone Carlysle- Smith, with post-draft consultation and early-stage implementation led by Glenn Mandziuk. The latter involved reaching out to local government, stewards, communities and provincial as well as national partners for their feedback and endorsement of the strategy.
Industry TOTA wishes to thank the many stakeholders that took the time to attend workshops and to be involved in discussions at various stages. The process was engaging, informative and at times contentious but all agreed that the rail trails system in the Thompson Okanagan was a treasured asset with considerable potential for future use as a transportation, recreation and tourism corridor.
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Letters of Endorsement Letters of formal endorsement for the regional rail trails strategy have been received from national, provincial and local organizations representing tourism, government and community interests. To be completed
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141 From: Ellen Walker-Matthews [mailto:[email protected]] Sent: Wednesday, July 06, 2016 12:55 PM To: Mary Jane Drouin Cc: Glenn Mandziuk Subject: Re: FW: Delegation Request Form
Dear Mary Jane,
Thank you for your response to our request to present to an upcoming meeting. The following is an overview of the information we would like to present to your board.
The Thompson Okanagan Tourism Association (TOTA) would like to formally present Thompson Okanagan Rail Trails Tourism Strategy at your next regularly scheduled Regional District Board meeting and ultimately seek the Board’s endorsement of the strategy.
Over the past several months Thompson Okanagan Tourism Association (TOTA) with support from Destination BC (DBC) has drafted a comprehensive Rail Trails Tourism Strategy. This strategy prepared by Lionsgate Consulting together with the Tourism Planning Group involved industry stakeholders and local regional, provincial and national government representatives and has since been reviewed and supported by DBC and our regional Trails Advisory committee. A key part of the process is to engage each Regional District that has the Rail Trails within its jurisdiction to foster understanding of the strategic direction and to obtain endorsement of the plan. Attached you will find an executive summary of the Strategy’s key findings.
There are a number of documents currently in play which address Rail Trail development, maintenance and the role trails play in active transportation within our communities. The purpose of this strategy was to specifically make recommendations toward the enhancement of the Rail Trails product as a tourism demand generator by creating an export ready experience that could attract domestic and international guests to the region for multi day experiences.
We look forward to hearing from you and scheduling a presentation and assisting the communities of the Thompson Okanagan in creating a Rail Trails Tourism product that benefits our communities through healthy and active lifestyle opportunities but can bring economic benefits through increased tourism visitation.
Please let me know if you have additional questions. We look forward to scheduling a date to make our presentation at the boards earliest convenience.
Kind Regards,
EWM
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R il T il T i St t Rail Trails Tourism Strategy
• Rail Trails Tourism Strategy • The development of this strategy is a direct result of the findings from the Thompson Okanagan 10 Year Regional Tourism Strategy
• Experienced Based Themes • Regional Strategy and Action plans
• Funding for this “pilot strategy” • Special allocation from DBC
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145 Fostering Remarkable Experiences
146 Rail Trails Tourism Strategy
147 Rail Trails Tourism Strategy
• Rail Trails Tourism Strategy Process • Lionsgate consulting group contracted through Symphony • Lionsgate consulting group contracted through Symphony • Regional Stakeholder input sessions/workshops held in 6 locations • Additional meetings held with Special Interest Groups • Trans Canada Trail CEO; PIB; OIB • Reviewed of “Best Practices” more than 20 Tourism Trail Routes Nationally / Internationally • Allegany Trail, Bruce Trail, Route Verte (QC), Nga Haerenga (New Zealand Cycle Trail) , Bibbulum (Australia), RailsTrails NZ (New Zealand) 148 Rail Trails Tourism Strategy
• Baseline Draft December 2015 • Reviewed by Advisory Committee • Reviewed by DBC • Final Draft to DBC March 2016 • DBC Input Session April 2016 • Advisory Committee Endorsement May 2016 • Trails BC Annual Meeting April 2016 • Road Show Presentations 15 Communities – May 2016 • Regional District Meetings July/August 2016
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Rail Trails Tourism Strategy
• Strategic Goals • Government commitment and clarity regarding usage • First Nations support & participation • Increased community partnerships • Double tourism visitation within 5 years • Realize 150 km of multi-use contiguous segments
150
ImplementingTravel Trade the Rail Trails Tourism Strategy& Media
59 Priorities Year 1 Recommendations • Launch Rail Trails Trust • MOU with First Nations Partners • Partnership with Off Road Vehicle groups • Develop signage plan • Market-ready product inventory • Align with 150 Celebration activities
151 Rail Trail Tourism Strategy
• Strategy Development Phase • $100,000 cost to complete • Implementation Phase • TOTA has committed $250,000 in labour and marketing • TOTA Awarded Federal Grant • 8 employees • 51 Weeks duration
152
2017 Major Event
153 Rail Trail Tourism Strategy
“We are here today to engage the Regional District of the Central Okanagan Board of Directors in the process of moving the strategy forward, foster understanding of the strategic direction and to obtain formal endorsement of the plan”. Glenn Mandziuk, CEO Thompson Okanagan Tourism Association.
154 Thank you
155 Regional Board
Report
TO: Regional Board
FROM: Mary Jane Drouin Manager – Corporate Services
DATE: September 26, 2016
SUBJECT: RDCO Responsible Dog Ownership Amendment Bylaw
Voting Entitlement: (All Directors – Unweighted Corporate Vote – 2/3rd Majority – LGA 208.1 & 228)
Purpose: To propose amendments to the Regional District’s Responsible Dog Ownership Bylaw No. 1343.
Executive Summary: The Regional Board adopted a new responsible dog ownership bylaw in February 2014. The bylaw is a ‘living document’ and as such is subject to amendments that refine the program as it evolves with input from the Dog Control Technical Advisory Committee. The bylaw has been seen by many jurisdictions as a leading enforcement tool for dog control. Since being adopted, staff continues to review what changes would further enhance the bylaw.
At this time, the following amendments to licensing fees are being recommended: Addressing the perception of a ‘penalty’ if renewing a license after February 28th. Dog owners will receive a discounted license fee if paid prior to the end of February; As of March 1st the license fee remains the same for the remainder of the year ($40 or $80). No longer will there be a $20 discount for new dog licenses after March 1st or a 50% discount for new dog licenses when purchased after July 31st; New dogs licensed after September 30th will receive a license for the current year, as well as the next calendar year.
RECOMMENDATION:
THAT RDCO Responsible Dog Ownership Amendment Bylaw be given first, second and third readings and adopted.
Respectfully Submitted:
Approved for Board’s Consideration M. Drouin Manager – Corporate Services
Brian Reardon, CAO
156 Responsible Dog Ownership Bylaw Amendment Report Page 2
Implications of Recommendation:
Strategic Plan: Provide a cost effective dog control service that encourages responsible dog ownership and protects public safety.
Organizational: Focus staff resources on the development of a Dog Control Service based on responsible dog ownership.
Legal/Statutory Authority: RDCO Responsible Dog Ownership Bylaw No. 1343
Background: The Central Okanagan Dog Control Service works with, supports and encourages responsible dog owners across the entire Regional District. It is recognized that most dog owners follow the principles of responsible dog ownership by licensing, leashing, being in the care and control of their pet and in doing so, act as a responsible owner in handling their dog on and off their property. Any dog owner exhibiting responsible behavior should have no problem complying with the requirements of the bylaw. The following amendments are being recommended: . License Fees: o Each unspayed or unneutered dog $80 o Each spayed or neutered dog $40 . Dog owners will receive a discounted license fee if paid prior to the end of February of each calendar year. Each unspayed or unneutered dog $60 Each spayed or neutered dog $20 o As of March 1st the license fee remains the same for the remainder of the year ($40 or $80). o No 50% discount when purchased after July 31st. o New dogs licensed after October 1st at the full rate ($80 or $40) will receive a license for the current year, as well as the next licensing year.
These amendments are proposed due to: Our municipal and SPCA partners frequently charge the wrong amount when dog owners come in later in the year (in 2016 354 wrong fees were charged). Now there will be one amount as of March 1st – either $80 or $40. This eliminates the questioning of dog owners to determine what rate to charge them. It will save staff time and arguments with dog owners who do not believe they should pay a penalty for a late payment, or license their dog as new instead of renew the license. There will no longer be issues with dog owners trying to purchase a new license at a discounted rate, when it is actually a renewal because the fee will be the same. This change will avoid dog owners waiting until August 1st to get the ‘half-price’ rate even though they have had their dog for a longer period of time. Eliminate half-priced licenses – dog owners don’t get half the service, nor half the benefits, whether that’s the ‘My Dog Matters’ program or enforcement.
157 Responsible Dog Ownership Bylaw Amendment Report Page 3
More work is involved with new dog owners, ie: setting up the account, mailing educational material and license. New dog licensing is increasing on-line (in 2016 alone 4,310 new dogs were licensed online; in 2015, 3,655).
These changes will reduce the amount of staff resources required to administer over 24,000 accounts (and increasing).
At this time, any increase to license fees for unaltered or altered dogs is not recommended. The Dog Control Technical Advisory Committee supported this recommendation and staff continues to believe it is too early to consider increasing license fees. Emphasis needs to continue to get all dogs licensed in the Central Okanagan. This will increase the revenues required for the service to be more ‘self-supporting’.
Number of dogs licensed: At year-end 2014 (19,815), 2015 (21,707), at the end of September 2016 (approximately 23,900) licenses were sold. The numbers continue to increase but we still have a way to go—it is believed there are over 30,000 dogs in the Central Okanagan.
Financial Considerations: Depending upon when owners license and the number of dogs licensed, there will be minor increases to license revenue ie: the 50% discount after July 31st is eliminated; discounted rate only applies during the months of January-February; new dog owners purchasing their license in the 4th quarter receive up to a 15-month license.
Organizational Issues: There will be less arguments/investigation with dog owners as there is one rate after the end of February. If an owner misses the discount period the license fee remains the same for the remainder of the year.
External Implications: Staff time will be saved at the municipal and SPCA offices.
Alternative Recommendation: None recommended. The Board could choose not to accept staff recommendations.
Attachment(s): RDCO Responsible Dog Ownership Amendment Bylaw
158 SCHEDULE TO BE AMENDED
Regional District of Central Okanagan
RESPONSIBLE DOG OWNERSHIP BYLAW NO. 1343
LICENSE FEES
SCHEDULE ‘B’
(a) For each spayed female or neutered male dog, where proof is provided that the dog has been spayed or neutered $20.00
(b) For each unspayed female or unneutered male dog $60.00 (c) Licensing for Nuisance, Aggressive, and Dangerous Dogs Altered Unaltered
Nuisance Dog $ 40 $ 80 Bylaw 1385 Aggressive Dog $100 $150 Dangerous Dog $500 $500
(d) A Kennel Operation Permit for a Hobby or Service Kennel $125.00
(e) For each lost dog tag, a replacement fee will be charged of $5.00 Bylaw 1385
(f) Should such license not be paid by the last day of February of the licensing year, the owner of any dog not so licensed shall paying a further fee of $20.00
(g) If a NEW dog is acquired or reaches the age of 3 months after March 1st in any license year, the owner thereof shall not be subject to paying the prescribed $20.00 penalty.
(h) Registered Guide/Service Dogs No Charge
(i) If an Owner has a dog spayed or neutered within six (6) months from time of purchase of a license in any license year, a refund Refund for the difference in the license fee shall be made providing a valid veterinarian certificate is presented by the Owner.
(j) RCMP service dogs No Charge
(k) For license fees paid by new Owners Discount after July 31st in each calendar year a fifty percent (50%) discount shall apply.
159 REGIONAL DISTRICT OF CENTRAL OKANAGAN
BYLAW NO. 13XX ______
A bylaw to amend the Regional District of Central Okanagan Responsible Dog Ownership Bylaw No. 1343
WHEREAS the Regional District of Central Okanagan has enacted the Regional District of Central Okanagan Responsible Dog Ownership Bylaw No. 1343;
AND WHEREAS it is necessary and desirable to amend said bylaw;
NOW THEREFORE, the Regional Board of the Regional District of Central Okanagan in open meeting assembled enacts as follows:
1. Schedule ‘B’ – LICENSE FEES
Delete (a) in its entirety:
“(a) For each spayed female or neutered male dog, where proof is provided that the dog has been spayed or neutered $20.00”
and replace with:
(a) For each spayed or neutered dog $40.00
Delete (b) in its entirety:
“(b) For each unspayed female or unneutered male dog $60.00”
and replace with:
(b) For each unspayed or unneutered dog $80.00
Add the words ‘(no early discounted rate applies)’ to: (c) Licensing for Nuisance, Aggressive, and Dangerous Dogs
Delete (f) in its entirety:
“(f) Should such license not be paid by the last day of February of the licensing year, the owner of the any dog not so licensed shall pay a further fee of $20.00
and add the following, and renumber all sections:
(c) License fees for (a) and (b) are discounted by $20 if paid by the last day of February of the licensing year
160 Delete (g) in its entirety:
“(g) If a NEW dog is acquired or reaches the age of 3 months after March 1st in any license year, the owner thereof shall not be subject to paying the prescribed $20.00 penalty”
Delete (k) in its entirety:
“(k) For license fees paid by new Owners after July 31st in each calendar year a fifty percent (50%) discount shall apply.”
and replace with:
For each license fee for NEW dog(s) paid after September 30th the license will be valid for that year, in addition to the next calendar year.
2. This Bylaw may be cited as the “Regional District of Central Okanagan Responsible Dog Ownership Amendment Bylaw No. 13XX, 2016”.
READ A FIRST TIME THIS 13th DAY OF October 2016
READ A SECOND TIME THIS 13th DAY OF October 2016
READ A THIRD TIME THIS 13th DAY OF October 2016
ADOPTED THIS 13th DAY OF October 2016
______CHAIR DIRECTOR OF CORPORATE SERVICES
I hereby certify the foregoing to be a true and correct copy of Bylaw No. 13XX cites as the “Regional District of Central Okanagan Responsible Dog Ownership Amendment Bylaw No. 13XX, as read a third time and adopted by the Regional Board on the 13th day of October 2016.
Dated at Kelowna, B.C. this 14th day of October 2016 ______DIRECTOR OF CORPORATE SERVICES
161 Regional Board
Report TO: Regional Board
FROM: Mary Jane Drouin Manager-Corporate Services
DATE: September 26, 2016
SUBJECT: Amendments to the RDCO Bylaw Notice Enforcement Bylaw No. 1326 & RDCO Ticket Information Utilization Bylaw No. 435
Voting Entitlement: (All Directors – Unweighted Corporate Vote – 2/3rd Majority – LGA 208.1 & 228)
Purpose: To propose bylaw amendments for fines related to the Responsible Dog Ownership Bylaw No. 1343.
Executive Summary: Staff has undertaken an audit of the number of ‘no dog license’ tickets issued under the Responsible Dog Ownership Bylaw No. 1343 which have not been paid. During the ticket audit, it became evident that a number of dog owners are failing to pay their fine(s) and consequently the outstanding amount is forwarded to a Collection Agency. It is believed that if the early payment discount (payment within 14 days of the ticket issued) is increased from $25 to $150 there will be higher compliance by dog owners to pay their fine within the 14 day period. In addition, on review of the ticketing bylaw the fine for Section 37 - Dogs in prohibited area, aggressive is currently $200; the fine for Section 38 - Failure to control/enclose an aggressive dog is $300. As the ticket pertains to an aggressive dog staff recommends the Section 37 fine should be the same as Section 38 at $300.
RECOMMENDATION #1:
THAT Regional District of Central Okanagan Bylaw Notice Enforcement Amendment Bylaw be given first, second and third readings and adopted.
RECOMMENDATION #2:
THAT Regional District of Central Okanagan Ticket Information Utilization Amendment Bylaw be given first, second and third readings and adopted.
Respectfully Submitted:
Approved for Board’s Consideration
M. Drouin Manager – Corporate Services Brian Reardon, CAO
162 Amendment to the RDCO Bylaw Notice Enforcement Bylaw Report Page 2
Implications of Recommendation:
Strategic Plan: Deliver the best value services.
General: Ensure ticket bylaws are reasonable, enforcement and hold citizens accountable for their actions.
Organizational: Reduction in the amount of fines being sent to Collections.
Financial: Enforcement tickets will be paid to the Regional District in a timely manner instead of being forwarded to Collections.
Legal/Statutory Authority: RDCO Ticket and Utilization Bylaw No. 435 RDCO Bylaw Notice Enforcement Bylaw No. 1326
Background: Amendment #1 Zero Tolerance for no dog license is working. Staff believes there is a likelihood of success in getting dog owners to pay their fines within 14 days by increasing the ‘early payment discount’ from $25 to $150. Bylaw enforcement staff will educate in the field that paying early will save them money, staff time will be saved by not having to process default payments and revenue will not be lost by sending outstanding fines to Collection. Many local governments, like the Regional District have a zero tolerance policy for no dog license. Since implemented in the Central Okanagan in January 2014, a variety of advertising campaigns and notifications have been undertaken to ensure dog owners are aware of this policy. Since 2014, 973 no dog license fines of $300 have been issued. 445 have been paid. 159 are either in the grace period before collecting or being paid through a 6-month payment plan. 369 tickets [approximately $110,700] have been forwarded to Collections. Prior to a fine going to Collections, dog owners receive fair warning that this will occur. An owner has 14 days to pay the fine and currently receives an ‘early payment discount’ of $25 if paid within that timeline. If not paid they have another 14 days to pay the face amount of the ticket (after 28 days the $25 late penalty applies). Legislatively (Bylaw Enforcement Act-Part 4), the Regional District may then begin collection procedures. At this point, if the fine is not paid a first notice is mailed notifying the dog owner that they have 28 days to pay the fine or will face collection proceedings. After that, a final notice is mailed providing a further 14 days to pay. If the fine remains unpaid it is sent to Collections (this is after providing 70 days to pay). The Collection Agency fee is 30% of the debt owed. Licensing continues to increase: 19,815 in 2014, to 21,707 in 2015, and in 2016 approximately 23,900.
Amendment #2 An increase in the ticket in the Responsible Dog Ownership Bylaw No. 1343: o Section 37 (or an aggressive dog) – “no Owner shall allow a Dangerous Dog or an Aggressive Dog into any sports filed, playground, public beach, swimming area, park, off-leash park, or school grounds at any time.” . Currently the ticket for this offence is $200 – recommendation is to increase the fine to $300 to match the same fine amount as Section 38 (fail to control/enclose aggressive dog).
163 Amendment to the RDCO Bylaw Notice Enforcement Bylaw Report Page 3
Amendment #3 Housekeeping amendment to delete Schedule “B” which is the Southern Interior Bylaw Notice Dispute Adjudication Registry Agreement. This Agreement should not form part of a bylaw as it is not necessary and is amended from time to time as other local governments enter into the Bylaw Adjudication Process.
Financial Considerations: A reduction in ticketing revenue should the ticket be paid within the 14 days. This will be offset by not paying 30% collection fees (the return rate on tickets sent to collections is only about 10%).
Organizational Issues: Reduction in the amount of staff time required to process outstanding fines to Collection.
External Implications: . Less angry dog owners who feel a $300 fine for not having a dog license is excessive. If they pay within 14 days the fine is reduced to $150. It is an incentive for dog owners to pay the ticket early for a 50% reduction in their fine.
Alternative Recommendation: None proposed. The Board may choose not to support the amendments, or change the discount amount being recommended.
Considerations not applicable to this report: Policy
Attachment(s): . RDCO Bylaw Notice Enforcement Amendment Bylaw . RDCO Ticket Information Utilization Amendment Bylaw
164 REGIONAL DISTRICT OF CENTRAL OKANAGAN
BYLAW NO. 13XX
Being a bylaw to amend the Regional District of Central Okanagan Bylaw Notice Enforcement Bylaw No. 1326
WHEREAS the Regional District of Central Okanagan adopted the Regional District of Central Okanagan Bylaw Notice Enforcement Bylaw No. 1326;
AND WHEREAS it is deemed necessary to amend the Bylaw Notice Enforcement Bylaw No. 1326;
AND WHEREAS it is desired to amend the ‘early payment discount’ for no dog license from $25 to $150; and increase the fine for aggressive dog in prohibited area from $200 to $300;
AND WHEREAS it is deemed unnecessary to have Schedule “B” the Southern Interior Bylaw Notice Dispute Adjudication Registry Agreement form part of the bylaw;
NOW THEREFORE the Regional District of Central Okanagan in open meeting assembled enacts as follows:
1. Schedule A, Appendix 2 shall be deleted in its entirety and replaced with Schedule A, Appendix 2 (2016) attached hereto and forming part of this bylaw.
2. Delete Schedule “B” in its entirety.
3. Delete 6.3 in its entirety:
“6.3 The City of Kelowna is authorized to enter into, and the Mayor and Clerk are authorized to execute the dispute adjudication system agreement in the form and with the content of the agreement attached as Schedule “B”.”
and replace with:
6.3 The City of Kelowna is authorized to enter into and execute the dispute adjudication system agreement.
4. This Bylaw may be cited as the “Regional District of Central Okanagan Bylaw Notice Enforcement Amendment Bylaw No. 13XX, 2016”.
READ A FIRST TIME THIS 13th DAY OF October 2016
READ A SECOND TIME THIS 13th DAY OF October 2016
READ A THIRD TIME THIS 13th DAY OF October 2016
165 - 2 -
ADOPTED THIS 13th DAY OF October 2016
______CHAIRPERSON DIRECTOR OF CORPORATE SERVICES
I hereby certify the foregoing to be a true and correct copy of Bylaw No. 13XX cited as the “Regional District of Central Okanagan Bylaw Notice Enforcement Amendment Bylaw No. 13XX, 2016” as read a third time and adopted by the Regional Board on the 13th day of October 2016
Dated at Kelowna, B.C. this day of 2016 ______DIRECTOR OF CORPORATE SERVICES
166 - 3 - Bylaw Notice Enforcement Bylaw No. 1326 Schedule A Appendix 2 (Bylaw No. 13XX, 2016 Amendment)
(For Responsible Dog Ownership Bylaw No. 1343)
A1 A2 A3 A4 Offence Section Penalty Early Late Compliance Payment Payment Agreement Discount Penalty Available
Obstruct Animal Control Officer 7 & 8 $150.00 $25.00 $25.00 Y No dog license 10 & 11 300.00 150.00 25.00 Y Dog without tag 12 100.00 25.00 25.00 Y Keep more than 3 dogs 14 100.00 25.00 25.00 Y Fail to keep dog in fence or pen 21 100.00 25.00 25.00 Y Fail to keep dog as required 21.1 & 21.2 100.00 25.00 25.00 Y Fail to fence/pen 22 & 62 100.00 25.00 25.00 Y Contravene tethering 23 & 24 200.00 25.00 25.00 Y Dog at large/Fail to leash – 1st offence 25 150.00 25.00 25.00 Y Dog at large/Fail to leash – 2nd offence 25 200.00 25.00 25.00 Y Dog at large /Fail to leash – 3rd & subsequent offences 25 300.00 25.00 25.00 Y Dog in prohibited area 26 100.00 25.00 25.00 Y Fail to leash, in park – 1st offence 27 100.00 25.00 25.00 Y Fail to leash, in park – 2nd offence 27 200.00 25.00 25.00 Y Fail to leash, in park 3rd & subsequent offences 27 300.00 25.00 25.00 Y Contravene off-leash requirement in off-leash parks and areas 28 a)b)d)e)f) 100.00 25.00 25.00 Y Contravene off-leash requirement in off-leash parks and areas 28 c) 200.00 25.00 25.00 Y
Noisy dog 29 100.00 25.00 25.00 Y Fail to remove dog feces 30 & 31 150.00 25.00 25.00 Y Fail to control – disease 32 100.00 25.00 25.00 Y Enclosed space or vehicle – ventilation 33 150.00 25.00 25.00 Y Nuisance (menacing) dog – lunges at a fence 34 150.00 25.00 25.00 Y Dog in prohibited area, aggressive 37 300.00 25.00 25.00 Y Fail to control/enclose aggressive dog 38, 38.1 38.2 300.00 25.00 25.00 Y Fail to post signage or microchip dangerous dog 40 & 41 300.00 25.00 25.00 Y
Contravene kennel requirements 42 a) b) c) 43 a) b) 44 & 47 200.00 25.00 25.00 Y
Unlawful release of a dog 66 500.00 25.00 0.00 Y
167
REGIONAL DISTRICT OF CENTRAL OKANAGAN
BYLAW NO. 13XX
Being a bylaw to amend the Regional District of Central Okanagan Ticket Information Utilization Bylaw No. 435, 1990
WHEREAS the Regional District of Central Okanagan adopted the Regional District of Central Okanagan Ticket Information Utilization Bylaw No. 435, 1990 and amendments thereto;
AND WHEREAS it is deemed necessary to amend the Ticket Information Utilization Bylaw No. 435;
NOW THEREFORE the Regional District of Central Okanagan in open meeting assembled enacts as follows:
1. Schedule 3 – Dog in prohibited area, aggressive dog - Section 37, amend the fine amount from $200 to $300
2. This Bylaw may be cited as the “Regional District of Central Okanagan Ticket Information and Utilization Amendment Bylaw No. 13XX, 2016.
READ A FIRST TIME THIS 13th DAY OF October 2016
READ A SECOND TIME THIS 13th DAY OF October 2016
READ A THIRD TIME THIS 13th DAY OF October 2016
ADOPTED THIS 13th DAY OF October 2016
______CHAIRPERSON DIRECTOR OF CORPORATE SERVICES
I hereby certify the foregoing to be a true and correct copy of Bylaw No. 13XX cited as the “Regional District of Central Okanagan Ticket Information and Utilization Amendment Bylaw No. 13XX, 2016” as read a third time and adopted by the Regional Board on the 13th day of October 2016
Dated at Kelowna, B.C. this 14th day of October 2016 ______DIRECTOR OF CORPORATE SERVICES
168
SCHEDULE 3
(Bylaw No. 13XX, 2016)
Ticket Offences for Regional District of Central Okanagan Responsible Dog Ownership Bylaw No. 1343
SECTION FINE Obstruct Animal Control Officer 7 $150.00 No dog license (adopted Dec. 2013) 10 & 11 300.00 Dog without tag 12 100.00 Keep more than 3 dogs 14 100.00 Fail to keep dog in fence or pen 21 100.00 Fail to keep dog as required 21.1 & 21.2 100.00 Fail to fence/pen 22 & 62 100.00 Contravene tethering 23 & 24 200.00 Dog at large / Fail to Leash – 1st offence 25 150.00 Dog at large / Fail to Leash – 2nd offence 25 200.00 Dog at large / Fail to Leash – 3rd & 25 300.00 subsequent offences Dog in prohibited area 26 100.00 Fail to leash, in park – 1st offence 27 150.00 Fail to leash, in park – 2nd offence 27 200.00 Fail to leash – in park 3rd & subsequent 27 300.00 offences Contravene off Leash Requirement in Off- 28 a, b,d,e,f 100.00 Leash Parks and Areas Contravene off Leash Requirement in Off- 28 c 200.00 Leash Parks and Areas Noisy dog 29 100.00 Fail to remove dog feces 30 & 31 150.00 Fail to control - disease 32 100.00 Enclosed space or vehicle- ventilation 33 150.00 Nuisance (menacing) dog – charging or 34 150.00 lunging at a fence Aggressive Dog 35 300.00 Dangerous Dog 36 1,000.00 Dog in prohibited area, aggressive dog 37 300.00 Dog in prohibited area, dangerous dog 37 1,000.00 Fail to control/enclose aggressive dog 38, 38.1, 300.00 38.2 Fail to control/enclose dangerous dog 39, 39.1, 1,000.00 39.2 Fail to post signage, or microchip – 40 & 41 300.00 dangerous dog Contravene kennel requirements 42 a) b) c) 200.00 43 a) b) 44, 47 Unlawful release of a dog 66 500.00
169 Regional Board
Report
TO: Regional Board
FROM: Mary Jane Drouin Manager of Corporate Services
DATE: October 5, 2016
SUBJECT: RDCO Starling Control Program Grant Service Establishment Bylaw
Voting Entitlement: All Directors – Unweighted Vote – Simply Majority – LGA 208(2)
Purpose: To seek Board approval to continue the Starling Control Program in the Central Okanagan.
Executive Summary: In 2010 and 2013, the Regional Board approved support for a starling control program managed by the BC Grapegrowers’ Association, and each time adopted an establishment bylaw for a 3- year period. Support for the program was contingent upon both the North Okanagan and Okanagan Similkameen Regional Districts providing a minimum of $25,000 in funding. Both regional districts have approved support for the service and have adopted establishment bylaws with no end date. Staff is recommending that the Central Okanagan adopt an establishment bylaw with no end date as well. The participating partners in the Central Okanagan’s bylaw are the City of Kelowna, District of Peachland and District of Lake Country. Central Okanagan West and Central Okanagan East Electoral Areas provide their support through their electoral area grant in aid fund. In addition, over the past six years the City of West Kelowna has provided their apportionment of funding directly to the BC Grapegrowers’ Association. Consent for the new bylaw will be sought by all municipalities and electoral areas.
RECOMMENDATION:
THAT RDCO Starling Control Program Grant Service Establishment Bylaw No. 1393 be given first and second readings;
AND FURTHER THAT the bylaw be forwarded to the municipal councils and electoral area directors to receive consent prior to third reading.
Respectfully Submitted:
Approved for Board’s Consideration
M. Drouin Brian Reardon, CAO Manager, Corporate Services
170 Starling Control Establishment Bylaw Report Page 2
Implications of Recommendation:
Strategic Plan: Ensure services are effective and efficient, to maximize benefit/cost. Continuously look for and implement productivity improvements.
General: The BC Grapegrowers’ Association provides administration and program management for this invasive species program throughout the Okanagan valley since 2006.
Financial: Funding is through requisition of money under Local Government Act – Section 385 – Requisition of funds from municipalities to be collected by a property value tax to be levied and collected under the Act.
Central Okanagan West and Central Okanagan East Electoral Area grant in aid funding.
Legal/Statutory Authority: Establishment of a service under the Local Government Act-Section 338.
Background: In order to adopt an establishment bylaw, the Regional District must follow regulations in the Local Government Act (Section 342). An establishing bylaw has no effect unless, before its adoption, it receives approval of the Inspector of Municipalities and participating area approval. The participating municipalities are required to provide their consent for the bylaw through Council resolution. Central Okanagan West and Central Okanagan East Electoral Areas have funded their portion through the electoral area grant in aid, due to the need for an Alternative Approval Process, petition or referendum. As the annual funding provided for this service by the electoral areas is minimal and the cost to complete the above approvals would be significantly higher than the grant itself, the funding for the program has been provided through the electoral area grant in aid.
In the past, the City of West Kelowna has chosen not to participate in the establishment bylaw but has committed to provide their portion of the $25,000 in funding directly to the BC Grapegrowers’ Association. Should the City of West Kelowna wish to participate in this new establishment bylaw, Council will be required to provide a resolution of support in the same way as the other municipal Councils. As a new establishment bylaw is being considered, West Kelowna Council will be asked if they wish to provide their consent for the bylaw or continue to fund as they have over the last six years.
Staff is recommending the RDCO establish a bylaw with no end date which is similar to the North Okanagan and Okanagan Similkameen regional districts. The Starling Program Service is part of the 5-year service review process the Regional Board has adopted. As the other valley regional districts are continuing their support for the program and a new establishment bylaw is before the Board for adoption the next informal review is scheduled for 2021.
The new establishment bylaw provides the option for a participating partner to withdraw from the service by providing at least a 16-month notice in writing prior to September 1st in any given year. This would allow the Board time to consider the merits of continuing the service, and should that not occur the Board could provide sufficient notice to the BC Grapegrowers’ Association and the other regional districts that the funding would be ending in the following year.
171 Starling Control Establishment Bylaw Report Page 3
The BC Grapegrowers’ Association Starling Control Program has successfully shown: A reduction in the use of propane cannons and other birds scaring devices; A reduction in the cost of bird control measures for farmers; A reduction in the amount of bird damage to crops; and A return of native songbirds to the region.
Again, it is noted that the Okanagan-Similkameen and North Okanagan Regional Districts have adopted a Starling Control Establishment Bylaw with no end date. In the interest of cost savings and increased efficiencies it is worth the RDCO considering doing the same. This will be the third consecutive time the RDCO has adopted a new bylaw due to the expiry date of three years.
At this time, the Board is being requested to give two readings to Bylaw No. 1393. Consent will then be sought from the municipal Councils and electoral areas. Once consent is received, the bylaw will be brought back to the Board for third reading and forwarded to the Inspector of Municipalities for approval prior to final Board adoption.
Attached, for information, is the November 2015 BC Grapegrowers’ Association presentation to the Board highlighting the Starling Control program and its’ success throughout the Okanagan Valley.
Financial Considerations: The maximum financial contribution to the BC Grapegrowers’ Association is $25,000. Administrative overhead at the lowest level is added in accordance with the RDCO policy. In 2016, the rate was 4.9%. The bylaw is written as ‘the maximum amount that may be requisitioned annually for the service shall not exceed $30,000’. The apportionment of funding, including overhead, in the 2016 budget is as follows: o City of Kelowna - $17,855 o District of Lake Country - $1,922 o District of Peachland - $837 o Central Okanagan West Electoral Area - $612 o Central Okanagan East Electoral Area - $543 = $21,769
Cost sharing is on the basis of assessed values by area.
City of West Kelowna’s contribution was $4,284. $4,284 = $26,053
External Implications: The establishment bylaw requires consent of participating municipal Councils and approval by the Inspector of Municipalities prior to adoption by the Regional Board.
Alternative Recommendation: THAT the Regional Board support the starling control program through the adoption of an establishment bylaw with an end date.
172 Starling Control Establishment Bylaw Report Page 4
Considerations not applicable to this report: Policy General Organizational
Attachment(s): Bylaw No. 1393 BC Grapegrowers’ Association Program Highlights – Nov. 2015
173 Regional District of Central Okanagan
Bylaw No. 1393
A bylaw to establish a local service area for the purposes of providing funding for a Starling Control Grant Program in the Regional District of Central Okanagan
WHEREAS a Regional District may by bylaw establish a service under the provisions of the Local Government Act – Section 338.
AND WHEREAS the Regional Board of the Regional District of Central Okanagan wishes to establish a local grant service for the purpose of providing funding to the Starling Control Program, as has been established in the Regional District of Okanagan Similkameen and the Regional District of North Okanagan;
AND WHEREAS the City of Kelowna, the Corporation of the District of Peachland, and District of Lake Country have consented to the establishment of the service of ‘Starling Control Program Grant’ in the whole of their municipal borders;
AND WHEREAS the City of West Kelowna has not consented to the establishment of the service but has committed to provide their share of the program funding directly to the BC Grapegrowers Association;
AND WHEREAS the Central Okanagan Electoral Area East and Central Okanagan Electoral Area West Directors have agreed to provide funds through their electoral area grant-in-aid programs based on their share calculated using annual revised assessment roll values;
NOW THEREFORE THE REGIONAL BOARD OF THE REGIONAL DISTRICT OF CENTRAL OKANAGAN IN OPEN MEETING ASSEMBLED ENACTS AS FOLLOWS:
1. The Regional District of Central Okanagan hereby establishes a service for the purpose of providing funding for the “Starling Control Service”.
Participating Areas
2. The participants in the service are the entire boundaries of the City of Kelowna, the Corporation of the District of Peachland, and the District of Lake Country, identified in Schedule ‘A’.
Requisition Limit
3. The maximum amount that may be requisitioned annually for the service shall not exceed Thirty Thousand Dollars ($30,000) or $0.0009 per $1,000 of the next taxable value of land and improvements in the service area, whichever is greater.
174
Cost Recovery
4. The annual cost of providing the local area service outlined in this Bylaw shall be recovered by the following:
a) requisition of money under Sections 385 [Requisition of funds from municipalities] of the Local Government Act to be collected by a property value tax to be levied and collected under Section 386 of the said Act. b) fees and charges imposed under Section 397 [Imposition of Fees and Charges] of the Local Government Act c) revenues received by way of agreement, enterprise, gift, grant or otherwise.
Withdrawal
5. A participant may withdraw from the service by giving at least a 16-month notice in writing to the Board prior to September 1st of a given year thereby taking effect December 31st of the following year.
Service Review
6. The Starling Control Program Grant Service will be subject to an informal service review every five (5) years, with the next review in 2021.
Citation
7. This bylaw may be cited as the “Regional District of Central Okanagan Starling Control Program Grant Service Establishment Bylaw No. 1393”.
READ A FIRST TIME THIS 13th DAY OF October 2016
READ A SECOND TIME THIS 13th DAY OF October 2016
READ A THIRD TIME THIS DAY OF 2016
Approved by the Inspector of Municipalities this day of 2016
ADOPTED THIS DAY OF 2016
______CHAIRPERSON DIRECTOR OF CORPORATE SERVICES
I hereby certify the foregoing to be a true and correct copy of Bylaw No. 1393 cited as the “Regional District of Central Okanagan Starling Control Program Grant Service Establishment Bylaw No. 1393, 2016", as read a third time by the Regional Board on the day of 2016.
Dated at Kelowna, B.C. this ______day of ______2016 DIRECTOR OF CORPORATE SERVICES
175
I hereby certify the foregoing to be a true and correct copy of Bylaw No. cited as the “Regional District of Central Okanagan Starling Control Program Grant Service Establishment Bylaw No. 1393" as adopted by the Regional Board on the day of 2016.
Dated at Kelowna, B.C. this ______day of 2016 DIRECTOR OF CORPORATE SERVICES
176
Regional District of Central Okanagan Starling Control Program Service Area Establishment Bylaw No. 13XX
Schedule "A"
Date of Adoption
District of Lake Country
City of Kelowna
District of Peachland
0 2.5 5 10 15
Kilometers 177 178 179 Regional Board
Report
TO: Regional Board
FROM: Marilyn Rilkoff Director of Financial Services
DATE: October 5, 2016
SUBJECT: Appointment of RDCO Auditors – 5-Year Term (2016 – 2020)
Voting Entitlement: All Directors – Unweighted Corporate Vote – Simple Majority – LGA 208.2
Purpose: To have the Board formally appoint the Regional District of Central Okanagan auditors as required under the Local Government Act (S. 377 (i)(d)) and Community Charter (Part 6, Division 2) for a period of five (5) years.
Executive Summary: In accordance with RDCO’s Purchasing Policy, a public RFP process for combined audit and optional financial services was held in September for RDCO, the Regional Hospital District, Okanagan Basin Water Board, and Sterile Insect Release. Bids from leading qualified audit firms were received. Proponents were ranked on combined criteria which included cost, experience, references, suitability of methodology, team and approach, benefit from value added services, and suitability of proposed form of contract. BDO Canada LLP was the highest ranked proponent from that process. The total audit services for 5 years for the RDCO portion of the contract will cost $189,650 ($35,750 in 2016, escalating at 2.9% per year). RECOMMENDATION:
THAT the Board appoint BDO Canada LLP as the RDCO’s auditors for a period of 5 years commencing with the year ended December 31, 2016.
Respectfully Submitted:
Marilyn Rilkoff, CPA CMA Director of Financial Services Approved for Board’s Consideration
Brian Reardon, CAO
180 Regional Board Report
TO: Regional Board
FROM: Ron Fralick Manager of Planning
DATE: October 4, 2016
SUBJECT: Zoning Amendment Bylaw No. 871-226 Application Z14/06 (Aljac Holding Company Ltd. c/o Monashee Surveying) Lot 1, Plan 12705, District Lot 2198, ODYD - 9711 Kilkenny Place
Voting Entitlement: Custom Vote – Fringe Area, Electoral Areas Only - 1 Director, 1 Vote
Purpose: To amend the Permitted Uses Table for the RU2 Rural 2 zone, Section 6.2.1 by adding a new subsection 6.2.1.18 - On Lot 1, Plan 12705, District Lot 2198, ODYD the following additional use is permitted: 2 dwelling units.
Executive Summary: Zoning Amendment Bylaw No. 871-226 received first reading May 25, 2015, a Public Hearing was held on November 23, 2015, and second and third readings granted the same evening Two dwellings exist on the subject property; however, under current zoning one single detached house is permitted. The proponent has substantiated historic use of the site, and the application is similar to other approved site-specific bylaws approved by the Board. The applicant has fulfilled all requirements identified by the Regional Board for final consideration of the site- specific bylaw amendment. The applicant has fulfilled all requirements identified by the Regional Board for final consideration of the site-specific bylaw amendment; therefore, Planning staff recommends that Zoning Amendment Bylaw No. 871-226 be adopted.
RECOMMENDATION:
THAT Zoning Amendment Bylaw No. 871-226, application Z14/06, be adopted.
Respectfully Submitted:
R. Fralick, MCIP, RPP C. Radford Manager of Planning Director of Community Services
Prepared by: Janelle Taylor, Planner 1 Approved for Board’s Consideration
Brian Reardon, CAO 181 Regional Board Report (Z14/06) Page 2
Implications of Recommendation:
Strategic Plan: Approval of the zoning amendment meets the 2015-2018 Strategic Priorities Plan, Strategic Priority #3: Nurture Responsible Growth and Development.
Policy: Approval of the zoning change complies with: Regional Growth Strategy Bylaw No. 1336, Policy No. 3.2.6.1 Preserve and enhance existing neighbourhoods through encouragement of a variety of housing types, densities, choices and affordability. Rural Westside Official Community Plan Bylaw No. 1274 policies.
Background: Zoning Amendment Bylaw No. 871-226 received first reading May 25, 2015, a Public Hearing was held on November 23, 2015, and second and third readings granted the same evening.
The Regional Board directed that final consideration be withheld pending the following: Receipt of bylaw approval from the Ministry of Transportation and Infrastructure. o Ministry of Transportation and Infrastructure approved Amendment Bylaw No. 871-226 on December 9, 2015.
Covenant restricting building footprint is registered on title of the subject property. o Notice of Registration for Covenant No. CA5406090 was received August 16, 2016.
A Development Permit application associated with replacement of the septic systems to be submitted and approved by the Regional District. o A report was completed by a Qualified Environmental Professional (QEP) after septic installation indicating that the works were outside of the 15m SPEA and that mitigation will be carried out as needed; there was no impact on riparian values. RDCO received confirmation from the QEP on September 9, 2016, that the mitigation work noted in the QEP report has been conducted.
Submission of record confirming that the two septic systems have been replaced (ie: completed Record of Sewerage System and a completed Sewerage System Letter of Certification as accepted by Interior Health). o August 12, 2016, RDCO received records confirming that the systems were replaced. Interior Health concurred that the requirement has been fulfilled.
Conclusion:
The applicant has fulfilled all requirements identified by the Regional Board for final consideration of the site-specific bylaw amendment; therefore, Planning staff recommends that Zoning Amendment Bylaw No. 871-226 be adopted.
Considerations not applicable to this report: Legal/Statutory Authority Financial Considerations Organizational Issues External Implications Alternative Recommendation
Attachment(s): Bylaw No. 871-226 182 183 184 185 Regional Board
Report
TO: Regional Board
FROM: Peter Rotheisler, Manager of Environmental Services
DATE: October 4, 2016
SUBJECT: Subdivision Servicing Bylaw – 1st, 2nd and 3rd Readings and Adoption
Voting Entitlement: (Custom Vote – Fringe Area, All Directors – 2/3 Majority – LGA 228)
Purpose: To seek Board approval for an updated Subdivision Servicing Bylaw.
Executive Summary: The current Regional District of Central Okanagan Subdivision and Development Servicing Bylaw No. 704 was adopted in July, 1997. In order to align the Regional District’s subdivision requirements with new provincial regulations and to account for development trends that have emerged over the years in the Electoral areas, a comprehensive review was undertaken.
The proposed Subdivision Servicing Bylaw reflects current provincial regulations and best practices and establishes standards for servicing subdivisions within the unincorporated areas. The new bylaw includes references to technical requirements, regulations and publications such as the Provincial Design Guidelines for Rural Residential Community Water Systems, Fire Underwriters Survey (FUS) Water Supply for Public Fire Protection, the Okanagan Basin Water Board Groundwater Bylaws Toolkit, and the Master Municipal Construction Documents. In addition to consultation with stakeholders, Electoral Area Directors and referral agencies, two comprehensive legal reviews (a primary review and, after revision, a final review) were completed.
RECOMMENDATION:
THAT Regional District of Central Okanagan Subdivision Servicing Bylaw be given first, second, third reading and adopted.
Respectfully Submitted:
Peter Rotheisler Chris Radford Manager of Environmental Services Director of Community Services
Prepared by: Michael Noga, Engineering Technologist II
Approved for Board’s Consideration
Brian Reardon, CAO
186 Subdivision Servicing Bylaw Update Report Page 2
Implications of Recommendation:
Strategic Plan: Supporting water management and protection initiatives, and promoting responsible environmental protection aligns with Strategic Priority 4, Managing infrastructure to service growing population, maintaining and improving community infrastructure - Strategic priority 2, and Operating in an accountable and fiscally responsible manner -Strategic priority 1.
Legal/Statutory Authority: Local Government Act Part 14-Division 11 s 506
Background:
Rapid growth on the former Westside of the RDCO had required the Engineering Services Department to establish the current Subdivision and Development Servicing Bylaw No. 704, 1996. This bylaw has been amended several times since 1999. Since the incorporation of the West Kelowna in 2008, areas requiring full urban servicing (commercial, industrial and high density residential) are no longer common within the electoral areas and the majority of subdivision applications pertain to rural residential land uses.
The proposed Subdivision Servicing Bylaw ensures the provision of services is adequate to meet the demands created by the approval of the subdivision. Consideration has been given to the current provincial agency regulations where appropriate, most particularly with respect to minimum lot sizes where no community sewer service is available. Onsite wastewater accounts for a large portion of sewage disposal in BC within the unincorporated areas. Drinking water objectives and proper wastewater disposal promotes the healthy development of land and a healthy community environment. It speaks to sustainability and provides acceptable water supply in terms of quantity and quality. Specific reference to the Ministry of Environment Guide to Conducting Well Pumping Tests for well sustainability, which provides pumping test requirements for proving water supplies for residential developments, takes into account owners of any neighbouring wells within 100 m of the pumping well. The bylaw remains consistent with existing provincial regulations, water laws and water sustainability act requirements. It achieves a common servicing standard and reduces confusion for staff, applicants and the provincial approving officer. It will be important to ensure that the bylaw remains up to date and applicable moving forward.
Key changes to the bylaw include:
Definitions and wording have been reviewed and revised to reflect best practices, facilitate ease of interpretation and to provide a reader friendly document to the Regional Board, development community, consultants, staff and the public.
Clarifying that The Ministry of Transportation and Infrastructure is the authority responsible for road requirements within road right of way and drainage. The Regional District does not have the authority to provide and maintain drainage works and defers to the Ministry’s requirements.
Referencing Master Municipal Construction Documents (MMCD) specifications and standard drawings to simplify servicing requirements for community water or wastewater.
187 Subdivision Servicing Bylaw Update Report Page 3
These are the municipal infrastructure standards used widely by BC municipalities including the City of Kelowna. Referencing standard drawings from the MMCD reduced the number of Regional District standard drawings to two.
The new bylaw respects current Official Community Plan policies and is consistent with existing provincial regulations, guidelines and current best practices as follows: o Sewerage System Regulation (B.C. Reg. 326/2004) o Green Bylaws Toolkit (2007) o MMCD, Platinum Edition (2009) o Okanagan Basin Water Board Groundwater Bylaws Toolkit (2009) o Provincial Design Guidelines for Rural Water Systems (2012) o Water Sustainability Act o Drinking Water Protection Regulation (B.C. Reg. 200/2003) o British Columbia’s Ground Water Protection Regulation (B.C. Reg. 299/2004) o Ministry of Environment Guide to Conducting Well Pumping Tests o Provincial Odour based Regulation
Survey Plan Certification and Application to Deposit Plan is required in accordance with BC Land Title & Survey electronic filing requirements.
The minimum standard of works and services required at time of subdivision, based on zone or land use designation, is clearly addressed in a concise table.
A reduction in the domestic demand criteria for water due to the higher attention to conservation, water metering, smaller lot sizes, and higher density. This is leading to more effective and responsible water usage and lower infrastructure costs and a lower expectation of water availability by the public.
The requirement of Community Wastewater for all parcels less than 1 ha is rephrased to be clear. The Ministry of Community, Sport and Cultural Development supports the 1 ha minimum lot size if no sanitary sewer is available, and it is consistent with the OBWB 1 ha policy.
Financial Considerations: Subdivision fees and charges were reviewed and found to be comparable to the current subdivision fees of adjacent regional districts and member municipalities: Regional District of Okanagan-Similkameen, Regional District of North Okanagan, Lake Country, Peachland, Kelowna and West Kelowna. Accordingly, no revision has been made to the subdivision fees and charges.
188 Subdivision Servicing Bylaw Update Report Page 4
External Implications: The consultation process provided Regional District staff, outside agencies, and key consultants and developers an opportunity to review and provide input and feedback into a new subdivision servicing bylaw. In addition, referrals for review and comment and to participate in the review of the draft bylaw were provided to member municipalities: City of Kelowna, District of Lake Country, District of Peachland, and the City of West Kelowna; provincial agencies: Interior Health Authority, Ministry of Environment, Ministry of Transportation & Infrastructure, Ministry of Community, Sport and Cultural Development; and other agencies: B.C. Hydro, Fortis B.C., TELUS, BMID, GEID, SEKID, OBWB, Master Municipal Construction Documents Association (MMCD), Westbank First Nation, Okanagan Indian Band, Urban Development Institute (UDI). As well, referrals for the final draft of the proposed bylaw were sent to the development community and a few consultants. Key referral comments are provided below.
“Overall, the proposed Subdivision Bylaw is a welcome replacement to the existing Subdivision and Development Servicing Bylaw No. 704 and we would like to commend the Regional District for effectively streamlining the document and aligning with MMCD in most ways.” –, Chair of UDI Okanagan
“Your draft bylaw has adopted the Master Municipal Construction Document (MMCD) as the basis of the Bylaw. The City of Kelowna supports that direction as we also use the same document.” – Long Range Planning Manager, Policy & Planning, City of Kelowna
“This bylaw is consistent with the board’s One Hectare Policy for our Sewerage Facilities Grants program.” – Executive Director, Okanagan Basin Water Board
Considerations not applicable to this report: Policy General Organizational
Attachment(s): RDCO Subdivision Servicing Bylaw
189 REGIONAL DISTRICT OF CENTRAL OKANAGAN
SUBDIVISION SERVICING BYLAW NO. XXXX, 2016
A bylaw to regulate and require the provision of works and services for the subdivision of land within the Regional District of Central Okanagan Electoral Areas.
This page is intentionally left blank, providing a space to add the future list of amendments and the consolidation clause after the first amendment has been adopted.
190 Regional District of Central Okanagan Subdivision Servicing Bylaw No. XXXX Page 2 of 45
Table of Contents
1 TITLE ...... 4 2 PURPOSE ...... 4 3 APPLICATION ...... 4 4 INTERPRETATION ...... 4 4.1 SEVERABILITY ...... 4 4.2 MASCULINE / SINGULAR ...... 4 4.3 SCHEDULES ...... 4 4.4 OTHER LEGISLATED REQUIREMENTS ...... 4 4.5 DUTY OF CARE AND CAUSE OF ACTION ...... 5 4.6 DEFINITIONS ...... 5 5 GENERAL PROVISIONS ...... 6 5.1 COMPLIANCE ...... 6 5.2 STATUTORY RIGHT OF WAY ...... 7 5.3 EXPENSE OF WORKS AND SERVICES BORNE BY OWNER ...... 7 5.4 TRANSFER OF OWNERSHIP ...... 7 5.5 INSURANCE ...... 7 5.6 SERVICING REQUIREMENTS ...... 8 5.7 BOUNDARY ADJUSTMENT ...... 8 5.8 CERTIFICATE TO COMMENCE CONSTRUCTION OF WORKS ...... 8 5.9 SUBDIVISION SERVICING AGREEMENT ...... 9 6 Minimum Servicing Standards ...... 9 6.1 GENERAL ...... 9 6.2 TECHNICAL ...... 9 7 FEES & CHARGES ...... 10 7.1 SUBDIVISION PROCESSING FEE ...... 10 7.2 ADMINISTRATION FEE ...... 10 8 ADMINISTRATION AND ENFORCEMENT ...... 10 8.1 AUTHORIZATION FOR ENTRY ...... 10 8.2 VIOLATION ...... 10 8.3 OFFENCE ...... 11 8.4 PENALTY ...... 11 8.5 STOP WORK ORDER ...... 11 9 QUALITY ASSURANCE ...... 11 9.1 DUTIES OF OWNER ...... 11 9.2 DUTIES OF OWNER’S ENGINEER ...... 11 9.3 DRAWINGS AND MANUALS ...... 11 9.4 MAINTENANCE SECURITY ...... 12 9.5 CERTIFICATE OF WORKS INSTALLATION ...... 13 9.6 SERVICES SIGNOFF ...... 13 10 REPEAL OF PREVIOUS BYLAW ...... 14 11 FORCE AND EFFECT ...... 14 SCHEDULE ‘A’ – MINIMUM WORKS AND SERVICES ...... 15
SECTION A.1 – ROADS, CURB, GUTTER, SIDEWALK AND STORM DRAINAGE ...... 15 SECTION A.2 – COMMUNITY WATER ...... 16 SECTION A.3 – PRIVATE WATER SOURCE ...... 16
191 Regional District of Central Okanagan Subdivision Servicing Bylaw No. XXXX Page 3 of 45
SECTION A.3 – COMMUNITY WASTEWATER ...... 18 SECTION A.4 – WALKWAYS ...... 26 SCHEDULE ‘B’ – STANDARD CHARGE TERMS ...... 27 SCHEDULE ‘C’ – PREPARATION OF DRAWINGS ...... 30 SCHEDULE ‘D’ – COMMITMENT BY OWNER AND ENGINEER...... 32 SCHEDULE ‘E’ – COMMITMENT TO DESIGN AND FIELD REVIEW ...... 34 SCHEDULE ‘F’ – CERTIFICATION OF BYLAW COMPLIANCE ...... 35 SCHEDULE ‘G’ – MAINTENANCE SECURITY AGREEMENT ...... 36 SCHEDULE ‘H’ – SUBDIVISION SERVICING AGREEMENT ...... 40 SCHEDULE ‘I’ – STANDARD DRAWINGS ...... 45
Tables: Table 7.1.1 – Subdivision Processing Fee ...... 10 Table 7.2.1 – Administration Fee * ...... 10 Table 9.4.1 – Maintenance Security * ...... 12 Table 6.2.1 – Minimum Standard of Works and Services ...... 15 Table C.4.1 – Civil 3D Layer Names ...... 31
192 Regional District of Central Okanagan Subdivision Servicing Bylaw No. XXXX Page 4 of 45
WHEREAS the Board of the Regional District of Central Okanagan wishes to repeal and replace Subdivision and Development Servicing Bylaw No. 704, 1996;
AND WHEREAS pursuant to Part 14: Division 11 of the Local Government Act, a local government may, by bylaw, regulate and require the provision of works and services in respect of the subdivision of land;
NOW THEREFORE, the Board of the Regional District of Central Okanagan, in open meeting assembled, ENACTS as follows:
1 TITLE
1.1 This bylaw may be cited as the “Regional District of Central Okanagan Subdivision Servicing Bylaw No. XXXX, 2016”.
2 PURPOSE
2.1 The purpose of this bylaw is to establish standards for works and services which must be constructed and installed to service any subdivision of lands within the Electoral Areas of the Regional District, for the benefit of the community as a whole.
3 APPLICATION
3.1 This bylaw applies to all subdivision of lands within the Electoral Areas of the Regional District, subject to the Local Government Act.
4 INTERPRETATION
4.1 Severability
4.1.1 If any section, subsection, sentence, clause or phrase of this bylaw is deemed to be invalid by the decision of any court of competent jurisdiction, the invalid portion shall be severed and the decision that it is invalid shall not affect the validity of the remainder of the bylaw.
4.2 Masculine / Singular
4.2.1 Gender specific terms in this bylaw include both genders, words in the singular include the plural, and words in the plural include the singular.
4.3 Schedules
4.3.1 Schedules ‘A’ to ‘I’ are attached to and form part of this bylaw.
4.4 Other Legislated Requirements
4.4.1 Nothing in this bylaw relieves any person or organization from complying with any provision of any Federal or Provincial legislation, or any other bylaw of the Regional District. Where there is a conflict of regulations, the more stringent shall apply.
193 Regional District of Central Okanagan Subdivision Servicing Bylaw No. XXXX Page 5 of 45
4.5 Duty of Care and Cause of Action
4.5.1 All works, services, improvements, and all matters required pursuant to this bylaw are the responsibility of the owner and applicant and all persons acting on their behalf. No approval of any kind, certificate, permit, review, inspection, or other act or omission by the Regional District or any of its representatives, including any enforcement or lack of enforcement of the provisions of this bylaw, shall relieve the owner and applicant and all persons acting on their behalf from this duty pursuant to this bylaw and shall not create any cause of action in favour of any person.
4.6 Definitions
4.6.1 In this bylaw, unless the context otherwise requires, all words and phrases shall have their normal or common meaning except where they are changed, modified or expanded in this section of this bylaw. All words or expressions used in the bylaw and defined in the Land Title Act, or the Local Government Act shall have the meaning assigned to them in those Acts.
“applicant” means a person applying for the approval of a subdivision whether as an owner thereof or his duly authorized agent.
“approval” means approval in writing from the authority having jurisdiction.
“Approving Officer” means an Approving Officer designated as such for a rural or unincorporated area pursuant to the Land Title Act.
“authority having jurisdiction” means the governmental body responsible for, or the official, or agency designated by the governmental body to be responsible for, the administration and enforcement of regulations in regard to a matter within the scope of this bylaw.
“Bare Land Strata Regulations” means Bare Land Strata Regulation 75/78 pursuant to the Strata Property Act.
“community wastewater” means a system for the collection, treatment and disposal of sanitary sewage, which serves two or more lots and is operated under an authorization pursuant to the Public Health Act or the Environmental Management Act.
“community water” means a domestic water system operated under an authorization pursuant to the Drinking Water Protection Act.
“dwelling unit” means one or more rooms used for the residential accommodation of one household.
“Engineer” means a person who is registered or licensed as an Engineer in good standing under the Engineers and Geoscientists Act.
“highway” includes a street, road, lane, bridge, viaduct and any other way open to the use of the public as defined by the Transportation Act, but does not include a private right-of-way on private property.
“improvement district” means an improvement district incorporated under the Local
194 Regional District of Central Okanagan Subdivision Servicing Bylaw No. XXXX Page 6 of 45
Government Act.
“MMCD” means the Municipal Infrastructure Design Guideline Manual and the Master Municipal Specifications and Standard Detail Drawings in Volume II of the Platinum Edition of the Master Municipal Construction Documents (2009) published by the Master Municipal Construction Documents Association, and include: a) the definitions of such terms used in the Master Municipal Specifications and Standard Detail Drawings as are set out in the General Conditions in Volume II; and b) all documents supplemental to the Master Municipal Specifications, the Standard Detail Drawings and the relevant definitions set out in the General Conditions that are issued from time to time by the Association, but exclude all references to measurement and payment in the Master Municipal Specifications.
“potable water” means water that meets the standard set out in Schedule A to the Drinking Water Protection Regulation.
“private water source” means a water supply from a well or surface water, not from a community water system, that serves a single parcel of land.
“qualified professional” in relation to groundwater matters means qualified in hydrogeology.
“Regional District” means the Regional District of Central Okanagan.
“Services Signoff” means a document issued under Section 9.6 of this bylaw.
“subdivision” has the same meaning as in the Local Government Act.
“works” means any public service, facility or utility which is required or regulated by this bylaw and includes, but is not limited to: road and storm drainage, a community water system with fire flows, and collection and disposal of community wastewater.
“zone” means a zone established under a Zoning Bylaw, or a Land Use Designation established under a Rural Land Use Bylaw of the Regional District governing the use of land adopted pursuant to the Local Government Act.
5 GENERAL PROVISIONS
5.1 Compliance
5.1.1 No parcel of land may be subdivided unless the subdivision conforms to this bylaw and other bylaws of the Regional District.
5.1.2 This bylaw outlines the minimum requirements and regulations pertaining to the subdivision of land. The Ministry of Transportation and Infrastructure and other agencies may have additional requirements, regulations, and approval procedures not contained within the bylaw. It is the applicant's responsibility to ensure that the requirements, regulations and approval procedures of all agencies having jurisdiction are met. Where requirements and regulations of other agencies are inconsistent with this bylaw the more
195 Regional District of Central Okanagan Subdivision Servicing Bylaw No. XXXX Page 7 of 45
stringent requirements and regulations shall apply.
5.2 Statutory Right of Way
5.2.1 Works constructed and installed under this bylaw must be located within dedicated highways or, with the approval of the Regional District, within statutory right of way granted by the owner in favour of the Regional District or other agencies having jurisdiction.
5.2.2 Where the owner is required to grant right of way to the Regional District, the owner must register the right of way in the Land Title Office using the Standard Charge Terms, Filing Number ST030105, as contained in Schedule ‘B’ of this bylaw.
5.2.3 Upon registration of the right of way and before release of any security being held by the Regional District, the owner must submit a copy of the registered right of way plan and agreement to the Regional District.
5.2.4 All costs pertaining to the acquisition, surveying and registration of the right of way shall be at the expense of the owner.
5.2.5 The minimum width for statutory right of way shall be 4.5 m for the first system of works, plus 1.5 m for each additional system of works. For deep sewers, the applicant may be required to provide additional width in order to insure that any future excavation will comply with the Workers Compensation Act.
5.3 Expense of Works and Services Borne by Owner
5.3.1 All works and services or any documentation required by this bylaw must be designed, located, constructed, installed, and supplied at the expense of the owner.
5.4 Transfer of Ownership
5.4.1 Works constructed and installed under this bylaw become the property of the Regional District or the agency having jurisdiction, on issuance of the Certificate of Works Installation.
5.5 Insurance
5.5.1 Where works are required, the owner must provide and maintain, at the owner’s expense, at all times until the end of the maintenance period, Comprehensive General Liability Insurance coverage, covering premises and operations liability, contingency liability with respect to contractual liability and automobile liability for owned, non-owned and hired units.
5.5.2 The limits of liability must be not less than $5,000,000.00 for each occurrence for bodily injury, death and damage to property.
5.5.3 The policy or policies must be with a company or companies, and on such terms, as are acceptable to the Regional District.
5.5.4 Each policy must provide that it cannot be cancelled, lapsed, or materially altered without a minimum thirty (30) days notice in writing to the Regional District by registered mail, must name the Regional District and its officials and employees as an additional insured, and must contain a cross-liability clause.
196 Regional District of Central Okanagan Subdivision Servicing Bylaw No. XXXX Page 8 of 45
5.5.5 The insurance coverage required to be provided by the owner may be embodied in a blanket insurance coverage obtained by the owner generally in connection with this section.
5.5.6 The owner must deliver a copy of each insurance policy with a letter from the insurance provider confirming the policies meet or exceed these requirements, to the Regional District prior to the commencement of construction of the works.
5.6 Servicing Requirements
5.6.1 An applicant who applies for subdivision must provide as a condition of approval the works and services that are required to be provided under this bylaw: a) on a highway immediately adjacent to the parcel being subdivided, up to the centre line of the highway, and; b) on the parcel itself.
5.6.2 The construction, installation, and connection of all works and services must conform to: a) the design drawings marked “Approved for Construction” by the Regional District, and; b) the provisions of this bylaw.
5.7 Boundary Adjustment
5.7.1 Where an owner is making an application to adjust parcel boundaries and is not creating any additional parcels, the owner must provide a plan prepared by a surveyor indicating the existing buildings and structures with setbacks from property lines, and the locations of all existing services, including electrical, water, sewer, and onsite sewage disposal, if applicable, and identifying which parcel each one will service.
5.7.2 Where an existing service line or facility is not located within the proposed parcel which it will service, the owner must grant an easement in respect of the service line or facility to the owner of the parcel being served.
5.8 Certificate to Commence Construction of Works
5.8.1 No person shall excavate or fill land for the purpose of constructing works required by this bylaw, nor shall any person construct or install any of the works as required by this bylaw until a Certificate to Commence Construction of Works is issued.
5.8.2 The Regional District must not issue a Certificate to Commence Construction of Works until the applicant submits the following information in accordance with the provisions of this bylaw: a) three complete sets of design drawings showing all pertinent information as required by this bylaw and prepared in accordance with Schedule ‘C’. b) detailed design calculations in support of the fire flows and storage required in the design of a community water system. c) detailed design calculations in support of a community wastewater system. d) Letter of Commitment by Owner and Engineer as contained in Schedule ‘D’. e) Letter of Commitment to Design and Field Review as contained in Schedule ‘E’.
197 Regional District of Central Okanagan Subdivision Servicing Bylaw No. XXXX Page 9 of 45
f) letters approving design from the Ministry of Transportation and Infrastructure, applicable improvement district, and other agencies having jurisdiction. g) a copy of the owner’s Insurance Policy for Comprehensive General Liability Insurance coverage, in accordance with section 5.5 of this bylaw.
5.9 Subdivision Servicing Agreement
5.9.1 A subdivision may be given final approval prior to completing the construction and installation of the required works, where: a) the owner enters into a Subdivision Servicing Agreement with the Regional District as contained in Schedule ‘H’, and; b) The owner deposits with the Regional District, security in the form of an unconditional, irrevocable and automatically renewing letter of credit in the amount of: i. one hundred twenty five percent (125%) of the value for the construction and installation of the works, plus; ii. one hundred twenty five percent (125%) of the owner’s Engineer’s fee for the design and inspection of the works as estimated by the owner’s Engineer, plus; iii. security for the owner’s maintenance obligations in accordance with Table 9.4.1 - Maintenance Security, plus; iv. one thousand dollars ($1,000.00) per sheet for drafting deficiencies, and; c) The applicant complies with the provisions of section 5.8, and; d) The owner has paid to the Regional District by bank draft or cash all fees and charges applicable to the subdivision including, without limitation, the subdivision processing fees, administration fees, and any applicable development cost charges, school site acquisition charges or latecomer charges.
6 MINIMUM SERVICING STANDARDS
6.1 General
6.1.1 The minimum servicing required for the subdivision of lands within the Regional District is prescribed in Schedule ‘A’. Where the standards and specifications of other agencies having jurisdiction conflict with this bylaw, the more stringent standards and specifications shall apply.
6.2 Technical
6.2.1 The technical standards for the design and construction of all works required by this bylaw are those contained in the MMCD.
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7 FEES & CHARGES
7.1 Subdivision Processing Fee
7.1.1 An applicant for subdivision approval must submit to the Regional District a subdivision processing fee in accordance with Table 7.1.1 – Subdivision Processing Fee. Table 7.1.1 – Subdivision Processing Fee
Number of Lots Subdivision Processing Fee Boundary Adjustment $300.00 2 $300.00 3 or more $500.00
7.2 Administration Fee
7.2.1 An applicant for subdivision approval must submit to the Regional District a works and services administration fee in accordance with Table 7.2.1 – Administration Fee. Table 7.2.1 – Administration Fee *
Description Administration Fee Boundary Adjustment $550 Land Title Act Subdivision $550 per parcel Bare Land Strata Subdivision $410 per parcel Offsite works not abutting a subdivision 3% **
* more than one of the items contained in Table 7.2.1 - Administration Fee may apply to any subdivision. ** 3% of the total capital costs of designing, constructing and installing all offsite works not abutting the parcel being subdivided as estimated by the owner’s Engineer and as approved by the Regional District.
8 ADMINISTRATION AND ENFORCEMENT
8.1 Authorization for Entry
8.1.1 Employees of the Regional District are hereby authorized to enter at all reasonable times upon any property or premises to inspect the same in connection with their duties under this bylaw to determine whether the provisions of this bylaw are being met.
8.2 Violation
8.2.1 Any person who: a) violates any provision of this bylaw; b) causes or permits any act in contravention or violation of any provision of this bylaw; c) neglects or omits any requirements of this bylaw; d) carries out, causes, or permits to be carried out any subdivision in a manner
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prohibited by or contrary to this bylaw; e) fails to comply with orders, directions, or notices issued pursuant to this bylaw; f) prevents, obstructs or attempts to prevent or obstruct the authorized entry of any officer authorized under section 8.1; will be guilty upon summary conviction of an offence under this bylaw.
8.3 Offence
8.3.1 Each day’s continuance of an offence under section 8.2 constitutes a new and distinct offence.
8.4 Penalty
8.4.1 Any person who violates any provision of this bylaw shall, on summary conviction, be liable to the maximum penalty under the Offence Act, plus the cost of prosecution, for each offence.
8.4.2 The penalties imposed under this section are a supplement and not a substitute for any other remedy to an infraction of this bylaw.
8.5 Stop Work Order
8.5.1 The Regional District may order: a) a person who contravenes this bylaw to comply with the bylaw within a time limit specified in the order; b) construction to stop on the work, or any part thereof, if such work is proceeding in contravention of this bylaw.
9 QUALITY ASSURANCE
9.1 Duties of Owner
9.1.1 Prior to approval to commence construction of works, the owner must: a) retain, as the owner’s Engineer, an Engineer to coordinate all design work and field reviews of the registered professionals required for the subdivision, and; b) submit to the Regional District a letter of Commitment by Owner and Engineer and a letter of Commitment to Design and Field Review as contained in Schedule ‘D’ and Schedule ‘E’.
9.2 Duties of Owner’s Engineer
9.2.1 Prior to the issuance of a Certificate of Works Installation by the Regional District, the owner’s Engineer must sign and seal a Certification of Bylaw Compliance as contained in Schedule ‘F’.
9.3 Drawings and Manuals
9.3.1 Design drawings and record drawings shall be prepared in accordance with the provisions set out in Schedule ‘C’ of this bylaw.
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9.3.2 Where the community water system or the community wastewater system will become the property of the Regional District, Operation and Maintenance Manuals must be provided for all pump stations, pressure reducing stations, reservoirs, water intakes, and any other works and services for which the Regional District requires them. For each facility and station three sets of hard backed bound operation and maintenance manuals containing the following information must be submitted to the Regional District prior to the issuance of a Certificate of Works Installation: (a) description of the facility and major mechanical, ventilation, electrical and monitoring systems, (b) design criteria, (c) drawings, showing the system layout and including pump houses and reservoirs, (d) equipment layout drawings and data sheets, (e) part and equipment lists showing all model and serial numbers, and names, addresses and phone numbers of the suppliers, (f) electrical, control, and alarm wiring diagrams, (g) operating and maintenance instructions for all equipment, including frequency of maintenance tasks, (h) commissioning report showing pressures, flows, current draw for all possible operating conditions, (i) spare circuit cards for critical components, (j) certified head/capacity curves for pumps, (k) emergency operating procedures.
9.4 Maintenance Security
9.4.1 Upon substantial performance of the owner’s obligation to construct works and services and prior to issuance of a Certificate of Works Installation by the Regional District, the owner must: a) enter into a Maintenance Security Agreement with the Regional District as contained in Schedule ‘G’ to provide for the correction of deficiencies in and maintenance of the works for a period of eighteen (18) months after the date of Works Installation, and; b) deposit an unconditional, irrevocable and automatically renewing letter of credit with the Regional District as a security in accordance with Table 9.4.1 – Maintenance Security: Table 9.4.1 – Maintenance Security *
Description Maintenance Security Land Title Act Subdivision $580 per parcel Bare Land Strata Subdivision 5% ** Deficiencies or defects 200% of the cost to correct *** Offsite works not abutting a subdivision 5% **
* more than one of the items contained in Table 9.4.1 Maintenance Security may apply to any subdivision. ** five percent (5%) or one thousand dollars ($1,000.00), whichever is greater, of the cost of designing, constructing and installing the works required under this bylaw, as submitted by
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the owner’s Engineer and as approved by the Regional District. *** two hundred percent (200%) of the cost, as estimated by the owner’s Engineer and as approved by the Regional District, to correct deficiencies or defects identified during the final inspection.
9.5 Certificate of Works Installation
9.5.1 A Certificate of Works Installation will be issued by the Regional District once the applicant has complied with all of the provisions of this bylaw in respect of a community water system or a community wastewater system.
9.5.2 The Regional District must not issue a Certificate of Works Installation until the applicant: a) submits a copy of the Certification of Bylaw Compliance b) submits record drawings and manuals c) submits a copy of the Survey Plan Certification with Plan of Subdivision attached, and a copy of the Application to Deposit Plan at Land Title Office - Schedule of Owners and Witnesses. d) submits copies of all registerable Statutory Right of Way plans and agreements e) pays in full by bank draft or cash, all applicable fees and charges. f) submits a letter of petition requesting service area expansion to include the subject property. g) submits video reports and air testing results. h) submits a letter from the applicable improvement district confirming where a park has been dedicated within the improvement district boundary that a water service connection of adequate size for irrigation purposes has been provided to the park boundary and all applicable improvement district fees have been paid. i) ensures a final inspection of the works is conducted by the owner’s Engineer and the Regional District. j) submits a Maintenance Security Agreement k) complies with all the provisions of this bylaw.
9.6 Services Signoff 9.6.1 A Services Signoff will be issued by the Regional District once the applicant has complied with the provisions of this bylaw in respect of a private water source or onsite wastewater disposal.
9.6.2 The Regional District must not issue a Services Signoff until the applicant: a) submits a copy of the Survey Plan Certification with Plan of Subdivision attached, and a copy of the Application to Deposit Plan at Land Title Office - Schedule of Owners and Witnesses. b) submits a drawing prepared by a surveyor indicating the location of all services in relation to legal property pins. c) submits copies of all registerable Statutory Right of Way plans and agreements. d) pays in full by bank draft or cash, all applicable fees and charges. e) complies with all the provisions of this bylaw.
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10 REPEAL OF PREVIOUS BYLAW
10.1 The Regional District of Central Okanagan Subdivision and Development Bylaw No. 704, 1996, and amendments thereto are hereby repealed.
11 FORCE AND EFFECT
11.1 This bylaw comes into effect upon adoption.
READ A FIRST TIME THIS DAY OF 2016. READ A SECOND TIME THIS DAY OF 2016. READ A THIRD TIME THIS DAY OF 2016. RECONSIDERED AND ADOPTED THIS DAY OF 2016.
CHAIR DIRECTOR OF CORPORATE SERVICES
I hereby certify the foregoing to be a true and correct copy of Bylaw No. XXXX cited as the “Regional District of Central Okanagan Subdivision Servicing Bylaw No. XXXX, 2016”, as read a third time and adopted by the Regional Board on the XX day of , 2016.
Dated at Kelowna, B.C. this day of 2016. DIRECTOR OF CORPORATE SERVICES
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SCHEDULE ‘A’ – MINIMUM WORKS AND SERVICES
Table 6.2.1 – Minimum Standard of Works and Services
Minimum Standard of Works Zone or Land Use Designation and Services Required
All CD zones, C1, C2, C3, C4, C5, C6, C7, C8, Community Water
I1, P1, P2, P3, RU4, RU5, R1, R2, RC1, R3A, Community Wastewater
R3B, R3C, R1M, RMP, CR, P-101, P-102
I2, I3, I5, RU3, RU6, SH-1, SH-2, C-101, C-102 Community Water
Onsite Wastewater Disposal
A1, F1, I4, I4A, CL8, RU2, RU7, LH, RTC, RA Private Water Source
Onsite Wastewater Disposal
1. For all zones and land use designations: • Where parcel size is 30 hectares or more, no servicing requirements apply. • Community Wastewater is required for all parcels with areas less than 1 hectare. 2. For parcels within the Agricultural Land Reserve, onsite wastewater disposal is permitted under the ALC Homesite Severance Policy for parcels with areas less than 1 hectare. 3. If a community water system is available to service the subdivision, the community water system must service each parcel in the subdivision. 4. For C5, C6, C7, C8 zones, onsite wastewater disposal is permitted if the subdivision is for the purpose of providing tourist campsites or one dwelling unit per parcel. 5. The zone or land use designation identified in the above table also includes the “s” classification (secondary suite) for the zone or land use designation. 6. Where a subdivision encompasses multiple zones or land use designations, the most stringent requirements shall apply to the entire subdivision.
SECTION A.1 – ROADS, CURB, GUTTER, SIDEWALK AND STORM DRAINAGE
1. General Requirements
1.1. The Ministry of Transportation and Infrastructure is the authority responsible for road requirements within dedicated road rights of way. 1.2. The design and construction of all roadway works shall conform to current standards and specifications of the Ministry of Transportation and Infrastructure.
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SECTION A.2 – COMMUNITY WATER
1. General Requirements 1.1. If servicing requires community water, subdivision must not be approved until: (a) The owner of the parcel being subdivided provides each parcel within the proposed subdivision with a water service connected to an existing community water system. All works must be installed in accordance with the standards set out in this bylaw, and in accordance with the current bylaws and regulations of the local water authority, and; (b) The proposed subdivision is included within an established community water system boundary which is either extended or established pursuant to the improvement district or local service area provisions of the Local Government Act. 1.2. Where construction of a community water system is required, the applicant must provide a water supply and distribution system including source, mains, valves, hydrants, service connections, pump stations and reservoirs in accordance with: (a) the standards and specifications set out in the MMCD and the latest version of: • Design Guidelines for Rural Residential Community Water Systems (excluding Demand criteria) published by Utility Regulation Section, Water Management Branch, Ministry of Forests, Lands & Natural Resource Operations • Fire Underwriters Survey (FUS) Water Supply for Public Fire Protection (b) and, with a minimum Domestic Demand Criterion for residential uses as follows: • Average Daily Demand = 900 litres/capita/day • Maximum Daily Demand = 2100 litres/capita/day • Peak Hourly Demand = 3600 litres/capita/day (c) and, with a minimum Fire Flow Demand Criterion as follows: • Single Family Dwelling = 60 litres/second • Multifamily Dwelling = as per FUS calculation 1.3. If the subdivision is located within an existing improvement district service area, the design must meet the requirements of the improvement district. A Water Service Certificate or equivalent approval is required of the applicant to ensure that all requirements of the local water provider are met. 1.4. All services to park dedication shall conform to Standard Drawing No. W1 – R.D.C.O. Park Irrigation Service.
SECTION A.3 – PRIVATE WATER SOURCE
1. General Requirements 1.1. Where the minimum servicing requirements permit the subdivision to be serviced from a private water source, the applicant must provide a private water source in accordance with the standards and specifications set out in this schedule and the provisions of this bylaw. The applicant must provide a copy of any applicable water license required by the Province of B.C.
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2. Wells 2.2. Wells used as the private water source must be designed, located, constructed, tested and disinfected under the supervision of a qualified professional in accordance with British Columbia’s Ground Water Protection Regulation, the Ministry of Environment Guide to Conducting Well Pumping Tests, and the Okanagan Basin Water Board Groundwater Bylaws Toolkit Appendix A. 2.3. All wells must be capable of delivering potable water at a rate of not less than 20 litres per minute over a one hour period to a minimum of 2,300 litres per day per dwelling unit. 2.4. All quantity and quality testing must be verified by a qualified professional in accordance with the Okanagan Basin Water Board Groundwater Bylaws Toolkit Appendix A and B. Where such verification is older than 12 months at the date of application for subdivision the well shall be re-tested and verified by a qualified professional. The report must confirm that all dug wells less than 15 m deep meet the Ground Water Protection Regulation minimum construction standards. 2.5. A plan, prepared by a surveyor, must be provided indicating the location of all wells.
3. Surface Water 3.2. The quantity of water authorized to be used under the water license shall be as determined by the Comptroller of Water Rights, but shall not be less than 500 Igal (2273 litres) per day per dwelling unit. 3.3. The applicant must verify by means of test results from an accredited testing laboratory that the water authorized to be used under the water license is potable water.
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SECTION A.3 – COMMUNITY WASTEWATER
1. General Requirements 1.1. Community wastewater systems shall be designed and installed in accordance with the requirements of this section and the MMCD. 1.2. The proposed subdivision shall be included within an established community sewer system boundary which is either extended or established pursuant to the local improvement and local service provisions of the Local Government Act, as required by the authority having jurisdiction.
2. Design Criteria – Collection Systems 2.1. Design Flows: The sanitary sewer system must be designed based on the following: (a) Domestic Flow Rate = 300 litres/capita/day (b) Infiltration Rates: Pipes not in water table 5,000 l/ha/d Pipes in water table 8,000 l/ha/d (c) Densities: Single Family 3 people/unit Multi-family, Mobile Home 2 people/unit Industrial, Institutional 50 people/ha Commercial 75 people/ha (d) A peaking factor must be applied to the average flow. Peaking Factor = 1 + 14 / (4 + P0.5) P = Population (in thousands) (e) Peak design flows must be determined by applying the peaking factor to the average daily flow plus infiltration. 2 3 (f) Pipe sizes must be selected so that sewers flow /3 to /4 full at peak hour design flow. 2.2. Pipe Flow Formulas: (a) Manning’s formula must be used for gravity sewers and the roughness coefficients must be 0.013 for concrete and 0.011 for polyvinyl chloride (PVC). (b) Hazen-Williams formula must be used for force main sewers and the friction coefficient must be 120. 2.3. Velocities: The minimum velocity required is 0.6 m/sec. There is no maximum velocity, however, consideration must be given to scour problems where flow exceeds 3.0 m/sec. 2.4. Minimum Grade: The grade of any sewer is governed by the minimum velocity required (0.6 m/sec). However, (a) The minimum grade for all pipes is 1.0% unless restricted by topography or other factors approved by the Regional District. (b) There must be no change in grade between manholes.
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2.5. Alignment of Sewer Mains: Sanitary sewers are to be located within the centerline alignment of the roadway and designed to follow a straight alignment between manholes unless otherwise approved by the Regional District. 2.6. Minimum Pipe Diameter: The minimum permitted size of pipe is 200 mm diameter. 2.7. Depth of Cover: The depth of cover of the sewer main (top of pipe to surface of road or ground) must be sufficient to provide “gravity flow” service connections to both sides of the highway and must allow for future extension to properly service all of the upstream tributary lands. The minimum depth of cover shall be 1.2 m. 2.8. Manholes: (a) Manholes must be installed at all: • changes in grade • changes in direction • changes in pipe sizes • intersecting sewers • terminal sections (b) Manholes must be placed at all locations where future extensions are anticipated and must be spaced no further than 150 m apart. Placement of manholes in existing or future wheel paths is to be avoided. (c) For sanitary sewer manholes not located within the road prism, the rim elevation must be designed to be above: • the adjacent storm manhole rim elevation • the surrounding ground so that infiltration from ponding will not occur. • the 100 year return runoff event. (d) The crown of the downstream pipe must not be higher than that of the upstream pipe. When connecting a collector sewer main to a trunk sewer 300 mm or 3 greater, the invert of the collector main must not connect lower than 0.75D ( /4 pipe diameter). (e) Minimum drop in invert levels across manholes: Straight run pipe Slope of pipe Deflections up to 45º 25 mm Deflections 45º to 90º 50 mm (f) Inside ramps will be permitted up to 450 mm from invert to channel bed. (g) The maximum deflection angle created in a junction is 90º. 2.9. Temporary Clean-Outs: Temporary clean-outs may be provided at terminal sections of a main where: • future extension of the main is anticipated • the length of sewer to the downstream manhole does not exceed 45 m • the depth of the pipe does not exceed 2.0 m of cover at the terminal point • design of the anticipated extension is completed to the next manhole to ensure the works will not require realignment when extended
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2.10. Service Connections: Service connections must be installed in accordance with: (a) Each parcel must be provided with its own service connection. Only single connections will be permitted. (b) All service connections must enter the sewer main at a point just above the springline. (c) Service connections to new mains must be made using standard wye fittings; connections to existing mains shall be made using wye saddles or other pre- approved methods. (d) The minimum grade from the main to the property line shall be 2.0% for a 100 mm service and 1.0% for a 150 mm service. (e) The diameter of sewer service connections must be as determined by the Owner’s Engineer but in no case shall the diameter be less than 100 mm. (f) The minimum depth of a service at the property line must be 1.2 m within a highway right of way and 1.0 m within a statutory right of way. (g) Service connections may be permitted into manholes provided that: • the connection is not in an adverse direction to the flow in the sewer main; • the connection enters the manhole so the service crown matches the sewer main crown, (h) Inspection chambers are required for all connections. Brooks boxes are to be installed on every inspection chamber in a roadway or travelled path. (i) Manholes are required to be installed at the intersection of the main and the service for non-residential services 150 mm or larger. (j) Service connections must be installed at the downstream corner of the parcel at an offset of 3.0 m from the property pin. (k) The maximum length of any service connection is 30 m, unless authorized by the Regional District.
3. Design Criteria – Sewage Lift Stations & Force Mains
3.1. Design Capacity: Lift stations shall be designed and approved on an individual basis. The lift station must be designed to handle the ultimate flows of the designated catchment area.
3.2. Pre-Design Report: Prior to commencing detailed design of a lift station, the Engineer must submit a pre-design report that addresses the required design considerations. Approval of the pre-design concepts must be obtained prior to the Engineer commencing detailed design.
3.3. Location Considerations: Lift stations must be located with consideration of the following conditions: (a) Access and convenience, for construction and for operation and maintenance. (b) Aesthetics, noise, odour control and landscaping. (c) Security against vandalism and theft. (d) Station uplift design must be based on minimum load level and maximum flood elevations.
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(e) Proximity of receiving sewers, water mains and adequacy of power supply. (f) Soils, sub-surface investigations must be undertaken prior to site approval. (g) Safety for operators and public.
3.4. Site Requirements: (a) The size of the area is to be determined by the requirements for maintenance, to allow removal of pumps using hoist truck with 1.8 m boom, to provide safe access and egress into the lift station, operator parking, a control kiosk, and a generator pad. (b) The area around the station and all associated equipment or building must be paved, and the pavement sloped to drain away from the wet well. (c) Security lighting and perimeter fencing is to be provided. Fencing must be 2.4 m high black chain link with a lockable access gate wide enough for access by service trucks. (d) Low maintenance irrigated landscaping is to be provided.
3.5. Wet Wells: (a) Wet wells may be either rectangular or cylindrical in shape. (b) The minimum barrel size of cylindrical wet wells is 2440 mm in diameter. (c) The interior surfaces of all steel and fibreglass stations must receive at least two coats of two component white epoxy enamel. (d) Either sulphate resistant concrete or fibreglass-reinforced-plastic (FRP) wet well construction is acceptable. (e) The wet well bottom must be benched to direct all solids into the pump suction. The influent line must be located tangent to the wet well to encourage scouring of the wet well. (f) A receptacle compatible with the Regional District’s removable lifting arm must be incorporated into the design of the pump station to facilitate the removal and installation of the pumps. (g) The roof and cover of the lift station should be designed to withstand a loading of H-20 (Highways Standard). (h) Metal stations must be protected by impressed current or sacrificial anodes as determined by corrosion potential analysis. (i) Minimum storage between the high level alarm and the start of overflow under the more critical of: (1) Minimum 2 hour in wet well at average wet weather flow, or (2) Minimum 1 hour in wet well and influent pipes at peak wet weather flow. (j) For small lift stations, emergency storage may also be required; emergency storage is to be based on 8 hours of average day flows.
3.6. Wet Well Access: (a) The entrances to all stations must be water proof and be provided with a suitable lock. The access must be a minimum 900 mm x 900 mm in size. The access
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hatch must have: • aluminium 6.4 mm tread plate • perimeter drain • perimeter sealing gasket • slam lock with an aluminium removable sealing plug and opening tool • flush lift handle • gas spring assist cylinder • 90° hold open arm • flush fitting padlock tang (b) The hatch must be reinforced for 1465 kg/m2. All fasteners to be made of 316 stainless steel. (c) The entrance must be at ground level where feasible but, in no case more than 300 mm above the ground. (d) An explosion-proof light with a protective cover should be located in a suitable location in the station and the light should be activated by the entrance cover. (e) Access into the stations must be by an aluminium ladder. The location of the ladder must not interfere with the removal and installation of the pumps or other equipment. The ladder must be designed to extend and lock at least 600 mm above the station entrance. A platform is to be provided above the high water level float to permit wet well access. The platform is to be a fibreglass grating.
3.7. Electrical:
(a) 3-Phase power supply shall be provided to all lift stations.
(b) An uninterruptible power supply shall be provided for all PLCs (programmable logic controllers.
(c) Electrical design and installation is subject to the acceptance of the Provincial Safety Inspector, and the Electric Utility provider.
(d) Electrical cables shall be installed in threaded rigid aluminum conduits. Ensure all electrical facilities within the confines of the wet well meet the Canadian Electrical Code for explosive atmospheres, Class 1, Division 2.
(e) The wet well shall be provided with lighting to allow for visibility during maintenance operations, lighting must be easily accessible for changing bulbs.
(f) Each pump must be operable through a VFD. VFDs shall be provided with a time delay to allow restarting at 100% frequency after a power bump. Power to the VFDs shall be provided through a disconnect switch.
3.8. HVAC: All stations must be equipped with an explosion-proof exhaust fan which can be activated by a manual switch, and be of sufficient capacity to exchange the total volume of air inside the station with fresh air within 3 minutes of activation. Air injection systems shall be designed specific to the application, to function year round without freezing and to satisfy electrical code requirements.
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3.9. Pumps: (a) Pumps shall be Gorman-Rupp or Flygt submersible N-pumps with semi open impellers or preapproved equivalent. (b) Lift stations shall be designed with 100% system capacity redundancy, necessitating each station to be supplied with a minimum of two pumps. Pumps shall be identical, and the pump control system shall be programmed so that pumps alternate between duty-standby status each operating cycle. (c) Design the station so that each service pump operates through a variable frequency drive (VFD). (d) Size each installed pump for 100% capacity at peak design flow. Size the wet well and pumps so that motor starting frequency is no greater than eight starts per hour for the design flow. (e) Pumps must be capable of passing solids up to 75 mm in size. (f) Pumps shall be located for ease of accessibility and provision should be made for convenient removal and replacement. (g) Quick-connect power supply cables and mechanical connections shall be provided so that a service pump can be easily replaced by a shelf spare. (h) Provide chains on pumps to reach 3 m above surface of wet well roof to attach to davit or crane. (i) All pumps must be factory tested prior to installation.
3.10. Pump Controls: Each pump should have the following controls: • Adjustable motor circuit interrupter for short circuit protection, • Magnetic contactor which incorporates an adjustable, manually re- settable, overload protection relay to monitor the motor current and shut down the pump if the current exceeds the motor manufacturer’s recommended values. • Hand-Off automatic control selector switch • Elapsed time meter to the total the hours of operation of the pump • Green indicator light which turns on when the pump is running • Control Power-On light to allow the operator to determine if power is available to operate the controls • Red alarm indicator light which turns on to indicate pump trouble • Single phase protection for three phase systems • Amp meter and phase switch (optional) • HMI Screen for logic control.
3.11. Valves and Piping: (a) Use ball check valves for reverse flow prevention, plug valves for pump isolation, and knife gate valves for station bypass or isolation. Use ball check valves by Flygt or Red Valve, with cast iron body and nitrile covered steel ball. Use eccentric plug valves by Dezurik, Val-matic or Pratt, cast iron body with Buna-N coated plug and port area at least 100% of pipe area. For station isolation use knife gate valves by Dezurik, Red Valve or Orbe, cast iron body, stainless steel knife, lugged connections, Buna-N seats. (b) Where possible, provide valves through the Flygt package.
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(c) Furnish a wet well flushing valve on at least one of the station pumps. For separated wet wells, furnish each pump with a well finishing valve. (d) Regardless of supply of valves, each isolation valve must be operable from above the wet well roof. Depending on valve orientation, either install the valve with stem vertical and extend the stem to the surface, or provide a gear box with 90° turn to allow for a vertical stem extension. In instances where the valves must be outside the station they shall be provided complete with square operating nut and a nelson box. Valve pit shall be flush with surrounding pavement. (e) Provide a branch with a quick connect fitting on the discharge forcemain to allow emergency bypass should the forcemain be unavailable. Provide an isolation knife gate valve and a ball check valve on the branch upstream of the quick connect fitting. Ensure the quick connect fitting has a chained cover. The branch connection may be made either inside the wet well, upstream of the pump isolation valves, or outside the lift station which would require two isolation valves. Ensure all isolation valves are operable from the surface, without entering the wet well. (f) Install air/vacuum relief valves at all high points on the force main header. Provide air/vacuum relief valves manufactured by ARI. (g) Where possible, install discharge piping below the frost line. Slope the discharge pipe back toward the wet well to allow drainage. (h) Provide standard Flygt guide rails or equivalent and chains for removal of the pumps. (i) Provide a 75 mm draining line from the forcemain to the wet well that tees in downstream of the station check valve and isolation valve. Terminate the drain line with a capped 75 mm line with ball valve.
3.12. Instrumentation and Controls: (a) All lift stations must be equipped with wireless telemetry connected to the Regional District SCADA system. SCADA must be paid for by the Owner or Applicant and supplied and installed by the Regional District.
(b) Provide Miltronics ultrasonic level controls for basic pump start and stop operation and for high-high and low-low level sensors/alarm indication. For back up provide Flygt bulb level controls for high-high and low-low level signals. (c) All auxiliary equipment and control panels must be mounted in a suitable control kiosk adjacent to the station. The kiosk must be located a minimum of 3.0 m from the station lid. (d) The control kiosk must be designed to contain all control and telemetry equipment on the front panel and all power equipment on the rear panel. (e) The control panel must incorporate a Crouse Hinds receptacle and a transfer switch for the onsite backup generator. Underground electrical wiring is required. (f) Motor cables, power cables, etc., must be continuous from within the pump station to within the kiosk. In no instance shall a cable be spliced. (g) Lift stations must be supplied with an inline electro-magnetic flow meter, installed on the station discharge main in a separate meter pit. There must be no moving parts, or obstruction in the flow. The flow meter output is to be connected to the
SCHEDULE ‘A’ – MINIMUM WORKS AND SERVICES 213 Regional District of Central Okanagan Subdivision Servicing Bylaw No. XXXX Page 25 of 45
Regional District SCADA.
3.13. Water Service: A 38 mm diameter water connection complete with backflow prevention and a frost free spigot mounted above ground and in a heated box located close to the wet well, must be provided.
3.14. Generator: (a) All lift stations shall have a Crouse Hinds reverse contact (S22) generator receptacle with back box, regardless of whether a generator is initially installed. The receptacle shall be mounted no less than one metre above grade and shall be securely fastened to the enclosure using minimum 5/16-inch diameter bolts. (b) All lift stations shall have an area 4 m x 6 m designated for a generator, regardless of whether a generator is initially installed. (c) If the average design flow for a new Lift Station is 75,000 gallons per day, or flow added to an existing sewer pump station increases the flow to 75,000 gallons per day, an onsite generator shall be installed with the capacity to run 2 pumps, controls, lights and any other necessary equipment to operate the station. (d) Where a generator is required, it shall be sized appropriately for the pumps and wired through a manual transfer switch in such a manner as to back up power to the entire station. (e) Regardless of flow, a generator may be required if a station is in an area where an overflow may cause a public health or environmental hazard.
3.15. Noise Control Criteria: Noise levels for facilities must not exceed 65 dB at property line or 20 m away whichever is closer. 3.16. Corrosion and Odour Criteria: (a) Corrosion and odour control are required when limited daytime flows, or long force main lengths cause the pumped sewage to remain in the force main for longer than 45 minutes. (b) Odour Criterion for 10 m distance from any gravity main, force main, lift station or other sewer facility is a maximum concentration of 7 µm-3, 5 ppb for the 1 hour average and 3 µm-3, 2 ppb for the 24 hour average. (c) Dissolved sulphide maximum limit at any point in the system is to be 0.5 mg/l.
3.17. Force Mains: In conjunction with sanitary pumping facilities, the following criteria must be noted in the design of force main systems: (a) At the lowest pump delivery rate anticipated to occur at least once per day, a cleansing velocity of 1.0 m/sec should be maintained. Maximum velocity should not exceed 3.5 m/s. (b) An automatic air relief valve must be placed at high points in the force main to prevent air locking. (c) The minimum size for force mains shall be 100 mm diameter. (d) Force main must generally meet the standards specified for water main, however there are specific requirements for force main that may supersede water main standards, as follows:
SCHEDULE ‘A’ – MINIMUM WORKS AND SERVICES 214 Regional District of Central Okanagan Subdivision Servicing Bylaw No. XXXX Page 26 of 45
• Force main pipe must be identifiably different than water main pipe. Refer to MMCD Section 33 34 01. • Valves used on force main and pigging ports or cleanouts shall be lubricated full port plug valves size on size sufficient for long term use in a corrosive environment. (e) All force mains must be designed to prevent damage from transient conditions.
3.18. Operation and Maintenance Concerns: (a) All equipment must be CSA approved and have at least a one year warranty for parts and labour. (b) Strictly follow all occupational health and safety codes, (OHSA). (c) Provide a full set of spare parts recommended by the manufacturers for one year operation. (d) The supplier is to provide three sets of Operating and Maintenance Manuals.
SECTION A.4 – WALKWAYS
1. General Requirements 1.1. Walkways in non-rural areas must be provided with 1.2 m high chain link fencing on both sides constructed in accordance with MMCD Standard Detail Drawing No. C13. 1.2. Walkways in rural areas must be provided with 1.2 m high triple rail farm fencing on both sides. Where the surrounding environment does not require restricting public traffic within the walkway corridor in a rural area, the Regional District may permit alternative designs.
SCHEDULE ‘A’ – MINIMUM WORKS AND SERVICES 215 Regional District of Central Okanagan Subdivision Servicing Bylaw No. XXXX Page 27 of 45
SCHEDULE ‘B’ – STANDARD CHARGE TERMS
STANDARD CHARGE TERMS Filed by: Regional District of Central Okanagan Filing Date: August 25, 2003 Filing No. ST030105
BACKGROUND:
A. The Regional District requires that the Owner grant a statutory right of way for certain rights on, over and under the Lands. B. The Owner has agreed to grant to the Regional District a statutory right of way in respect of the Lands. C. The statutory right of way is necessary for the operation and maintenance of the undertaking of the Regional District.
AGREEMENTS:
In consideration of the mutual covenants and agreements contained in this Agreement and other good and valuable consideration, the receipt and sufficiency of which each party acknowledges, the parties agree as follows:
INTERPRETATION
1.1 In this Agreement: “Agreement” means the General Instrument - Part 1 and these Standard Charge Terms; “General Instrument - Part 1” means Part 1 of the General Instrument as prescribed by the Land Title (Transfer Forms) Regulation, as amended or replaced; “Lands” means the land described in Item 2 of the General Instrument - Part 1; “Owner” means the party named in Item 5 of the General Instrument - Part 1 as the Transferor; “Regional District” means the Regional District of Central Okanagan named in Item 6 of the General Instrument - Part 1 as the Transferee; “Right of Way Area” means the area identified in Item 7 of the General Instrument - Part 1; “Works” means one or more systems of sanitary sewer, storm sewer, water distribution, overland drainage or other public utility works, including all above and below ground infrastructure and appurtenances necessary for the operation and maintenance of the undertaking of the Regional District.
SCHEDULE ‘B’ – STANDARD CHARGE TERMS 216 Regional District of Central Okanagan Subdivision Servicing Bylaw No. XXXX Page 28 of 45
GRANT OF STATUTORY RIGHT OF WAY
2.1 The Owner grants in perpetuity to the Regional District a statutory right of way: (a) to enter over, on, in and under the Right of Way Area to: (i) conduct surveys and examinations; (ii) dig up, remove and replace soil; (iii) construct and install the Works; (iv) operate, maintain, clean, alter, relocate, inspect, repair and replace the Works;
(b) to enter, pass and repass over the Lands; (c) to make reasonable ancillary use of the Lands in connection with the Works; (d) to bring on to the Lands all materials and equipment the Regional District requires in connection with the Works; (e) to clear the Right of Way Area of anything which constitutes or may constitute an obstruction to the use of, or access to the Right of Way Area or to the Works; (f) to do all things necessary or incidental to the undertaking of the Regional District in connection with the Works.
COVENANTS OF THE REGIONAL DISTRICT
3.1 The Regional District shall: (a) use the Right of Way Area and carry out the construction and maintenance of the Works in a good and workmanlike manner in order to cause no unnecessary damage or disturbance to the Owner, the Lands or any improvements on the Lands; (b) exercise care not to damage the Lands or any improvements on the Lands and if the Regional District should cause any such damage, restore such damaged Lands or improvements thereon, as close to their pre-damaged condition as is reasonably practical, except that any obstruction cleared from the Right of Way Area pursuant to paragraph 2.1.(e) shall not be replaced.
COVENANTS OF THE OWNER
4.1 The Owner shall: (a) not do or permit to be done any act or thing which might interfere with, injure or impair the operating efficiency of the Works; (b) not allow any building, structure, material, or other obstruction of any kind in, on, over, or protruding over the Right of Way Area; (c) not place any soil cover on to the Right of Way Area so as to block access to the Works; (d) not reduce or increase the depth of soil cover over the Works without the consent in writing of the Regional District which consent shall not be unreasonably withheld;
SCHEDULE ‘B’ – STANDARD CHARGE TERMS 217 Regional District of Central Okanagan Subdivision Servicing Bylaw No. XXXX Page 29 of 45
(e) not conduct any blasting on or adjacent to the Right of Way Area without the consent in writing of the Regional District which consent shall not be unreasonably withheld.
GENERAL
5.1 The Works shall at all times remain the property of the Regional District and shall not be considered to form part of the Lands notwithstanding any law to the contrary. The Regional District may at any time remove or abandon all or part of the Works without obligation or affecting the rights granted to the Regional District pursuant to this Agreement. 5.2 The Regional District may grant licenses to others to exercise the specific rights granted to the Regional District under this Agreement. 5.3 This Agreement shall be registered at the Land Title Office as a charge on the Lands in priority over all financial charges. 5.4 This Agreement runs with the Lands. 5.5 This Agreement shall not prevent the Regional District from performing any of its functions authorized under any enactment, law, bylaw, resolution, document or other source of authority. 5.6 An Owner of the Lands is not liable for the breach of a covenant in this Agreement occurring after that party has ceased to be an Owner of the Lands. 5.7 If any section, subsection, sentence, clause or phrase in this Agreement is for any reason held to be invalid by the decision of a court of competent jurisdiction, the invalid portion shall be severed and the decision that it is invalid shall not affect the validity of the remainder of the Agreement. 5.8 The Regional District shall indemnify and save harmless the Owner against all liabilities, actions, damages and claims caused by the exercise by the Regional District of the rights granted under this Agreement. 5.9 Every reference to each party is deemed to include the heirs, executors, administrators, successors, assigns, employees, agents, officers, and invitees of such party wherever the context so requires or allows. IN WITNESS WHEREOF the parties acknowledge that this Agreement has been duly executed and delivered by the parties executing General Instrument - Part 1 attached to and forming part of this Agreement.
END OF SET
SCHEDULE ‘B’ – STANDARD CHARGE TERMS 218 Regional District of Central Okanagan Subdivision Servicing Bylaw No. XXXX Page 30 of 45
SCHEDULE ‘C’ – PREPARATION OF DRAWINGS
1. General Requirements 1.1. These requirements pertain to the preparation of design and record drawings for all works required to be constructed and installed under the provisions of this bylaw. 1.2. Existing works refers to the works which were constructed and installed prior to the current application for subdivision. Proposed works refers to the works which are to be constructed and installed during the current subdivision. Future works refers to any works that will be constructed or installed in future phases of subdivision. 1.3. Where no standard is defined in this schedule for the preparation of a drawing to portray a particular service, structure, or other item, instructions and requirements shall be obtained from the Regional District.
2. Format & Layout 2.1. The following requirements pertain to the preparation of drawings for all works required to be constructed and installed under the provisions of this bylaw: (a) Drawings must provide all information necessary to indicate current features of the site and the proposed works in the current application for subdivision. (b) Drawings must be prepared using the legal plan which will be sent to Land Title Office for registration as the cadastral base. (c) The title page, key plan and composite utility plan must be oriented in the same direction. (d) Matchlines must reference the appropriate sheet showing the continuation if the size of the subdivision makes it necessary to place the key plan or composite utility plan on two or more sheets. (e) Dimensions and units must be metric with grades shown in percentages to an accuracy of 2 decimal places and elevations to an accuracy of 3 decimal places. (f) Areas must be in square metres rounded to the nearest square meter. (g) Pipe sizes must be in millimeters as per ASTM specifications using 1" = 25 mm (h) Record drawings must be in black ink except for the plan profile grid lines that may be in green ink. (i) Plan/Profile drawings require a 1:500 Horizontal scale and a 1:50 Vertical scale. (j) In Civil 3D the layer names shall be used for type of object in accordance with Table C.4.1 - Civil 3D Layer Names.
3. Required Information 3.1. Drawings shall contain the following information: (a) Subdivision name, file numbers of approval authorities, name and address of Owner, name and address of Engineer. (b) A complete list of drawings belonging to the set.
SCHEDULE ‘C’ – PREPARATION OF DRAWINGS 219 Regional District of Central Okanagan Subdivision Servicing Bylaw No. XXXX Page 31 of 45
(c) Legal description of subject properties. All legal information, including bearings, dimensions, lot numbers, block numbers, legal plan numbers, and street names. All lots must be numbered, and the area of each lot must be shown. (d) North Arrow in top right corner. (e) All existing and proposed utilities, roads, walkways, and sidewalks, rights of way, easements and covenanted areas dimensioned and if existing, referenced to corresponding registered document numbers. (f) Geodetic control station monuments with identification number. (g) Dimensions establishing location of all surface works constructed within statutory rights of way and easements. (h) All underground utilities such as sanitary and storm sewers, water, electrical and communication wiring, gas and all applicable appurtenances. (i) Utility alignment referenced to the nearest property line or right of way boundary. (j) Size, slope and type of all pipes and direction of flow for sewers. (k) Specifications and details for all sanitary and water infrastructure and appurtenances. (l) Lot services referenced to the nearest legal pin. (m) All other related information.
4. Civil 3D Layer Names 4.1. Civil 3D drawings shall utilize the following layer names in accordance with Table C.4.1 – Civil 3D Layer Names. Table C.4.1 – Civil 3D Layer Names Layer Name Description Layer Name Description 0 not used Pstm profile storm Bldg-env building envelope Rdcl road centreline Border RDCO standard border Setback building setback Boundary subdivision boundary Uctv Cable television Contours Ground contours Uelec Electrical Curb curb Ugas Gas Curvdata curve data Usana Sanitary appurtenances Defpoints dimension nodes Usanfm Sanitary force main Dims parcel dimensions (L80) Usanml sanitary main Easement utility rights of way Usans sanitary service Pgrid 20mm profile grid Ustma storm appurtenances PgridF 2mm profile grid Ustmml storm main PgridV Vert. 20mm profile grid Utel Telephone House-txt civic addresses Uwata Water appurtenances Ip iron pins Uwatml water main Legal lot & plan lines Uwats water service Mailbox Mailbox Viewlayer viewport (F) Monu survey monuments Water Waterways/creeks Pfgc profile final ground centerline Prefix “fut-“ prefix future works Pegc profile existing ground centreline Prefix “ex-“ prefix existing works Psan profile sanitary Suffix “-txt” suffix used for all text layers
SCHEDULE ‘C’ – PREPARATION OF DRAWINGS 220 Regional District of Central Okanagan Subdivision Servicing Bylaw No. XXXX Page 32 of 45
SCHEDULE ‘D’ – COMMITMENT BY OWNER AND ENGINEER
(This form must be submitted before the Regional District will issue a certificate to commence construction of works. A separate form must be submitted by each Engineer.)
Regional District of Central Okanagan Date:…………………………….. 1450 KLO Road Kelowna, B.C. V1W 3Z4
Dear Sir:
RE: ………………………………………………………………………………………………………………………………..…………………. (Legal Description and Address of Subdivision)
1. The undersigned Owner has retained …………………………..……………………….…. as the Owner’s Engineer to coordinate and review all associated design criteria and field reviews of all works required for this subdivision. The Owner’s Engineer shall take all such steps as regulated under the Provincial Statute for his profession and by definition of field reviews hereinafter set forth, to ascertain that the design will comply with and construction will substantially conform in all material respects with the provisions of the Subdivision Bylaw and other applicable Permits, Bylaws, Acts, and Regulations which apply to the subdivision. The Owner’s Engineer will ensure that only qualified personnel are retained to carry out tests, inspect or carry out design work, detailing, or field reviews. “field reviews” mean such reviews of the works: (a) at the site of subdivision to which the subdivision application relates, and; (b) where applicable, at the fabrication site where components of the required works are fabricated, that the Owner’s Engineer, in his professional discretion, considers to be necessary in order to ascertain that the works substantially conform in all material respects to the design drawings and supporting documents prepared by the Owner’s Engineer and as marked, “Approved for Construction” by the Regional District. This will include keeping record of all site visits and any corrective actions taken as a result thereof. 2. The undersigned Owner has given a contractual mandate to the Owner’s Engineer to review reports of other testing and inspection agencies and disciplines where necessary, comment on their acceptability, determine the corrective action to take if unacceptable, and maintain a detailed record of every such report and comment. The Owner’s Engineer will submit summary progress reports to the Regional District on request. 3. The Owner and the Owner’s Engineer acknowledge their responsibility to each notify the Regional District in writing thirty (30) days prior to any intended termination of or by the Owner’s Engineer. The Owner and the Owner’s Engineer understand that where the Owner’s Engineer ceases to be retained at any time during construction of the works, work on the above subdivision shall cease until such time as (a) a new Engineer has been retained, and; (b) new documentation as contained in Schedules ‘D’ and ‘E’ of the Subdivision Bylaw are submitted to the Regional District. 4. The undersigned Engineer certifies that he is an Engineer licensed to practice in the Province of
SCHEDULE ‘D’ – COMMITMENT BY OWNER AND ENGINEER 221 Regional District of Central Okanagan Subdivision Servicing Bylaw No. XXXX Page 33 of 45
British Columbia and has been retained to ensure that the design will comply with and construction of the subdivision will substantially conform in all material respects with the Subdivision Bylaw and will submit letters of Certification of Bylaw Compliance as needed, for the approval of the above noted subdivision. 5. Furthermore, the undersigned Engineer hereby covenants that his firm presently carries liability insurance in the amount of one million dollars ($1,000,000.00).
If Owner is an Individual: Signed this ……. day of ………………, 20…… ) By the Owner in the presence of:
……………………………………………………... ) …………………………………………….………. Name of Witness Owner’s Name ) ……………………………………………………... ) …………………………………………….………. Signature of Witness Owner’s Signature ) ……………………………………………………... ) Occupation of Witness ) If Owner is a Company: Signed this ……. day of ………………, 20…… ) By the Owner in the presence of:
……………………………………………………... ) …………………………………………….………. Name of Witness Company Name ) By its Authorized Signatories: ……………………………………………………... ) Signature of Witness ) …………………………………………….………. ……………………………………………………... ) …………………………………………….………. Occupation of Witness )
Signed this ……. day of ………………, 20…… ) By the Owner’s Engineer in the presence of:
……………………………………………………... ) …………………………………………….………. Name of Witness Engineer’s Name ) ……………………………………………………... ) …………………………………………….………. Signature of Witness Engineer’s Signature ) ……………………………………………………... ) Occupation of Witness ) If the Owner’s Engineer is a member of a firm, complete the following:
I am a member of the firm ………………………………………………. and I sign this letter on their behalf.
SCHEDULE ‘D’ – COMMITMENT BY OWNER AND ENGINEER 222 Regional District of Central Okanagan Subdivision Servicing Bylaw No. XXXX Page 34 of 45
SCHEDULE ‘E’ – COMMITMENT TO DESIGN AND FIELD REVIEW
(This form must be submitted before the Regional District will issue a certificate to commence construction of works. A separate form must be submitted by each Engineer.)
Regional District of Central Okanagan Date:…………………………….. 1450 KLO Road Kelowna, B.C. V1W 3Z4
Dear Sir:
RE: ………………………………………………………………………………………………………………………………..…………………. (Legal Description and Address of Subdivision)
1. The undersigned Engineer hereby gives the assurance that the: …… sewage works (Initial applicable works below and cross …… water works out and initial non-applicable works) …… geotechnical for the subdivision will be designed, constructed and installed in accordance with the Subdivision Bylaw. 2. The undersigned Engineer hereby undertakes: (a) to be responsible for the field reviews of the above referenced works during construction. (b) to notify the Regional District in writing as soon as possible if the undersigned’s contract for field reviews is terminated at any time during construction. 3. The undersigned Engineer hereby certifies that I am an Engineer licensed to practice in the Province of British Columbia.
Signed this ……. day of ………………, 20…… ) By the Owner’s Engineer in the presence of:
……………………………………………………... ) …………………………………………….………. Name of Witness Engineer’s Name ) ……………………………………………………... ) …………………………………………….………. Signature of Witness Engineer’s Signature ) ……………………………………………………... ) Occupation of Witness ) If the Owner’s Engineer is a member of a firm, complete the following:
I am a member of the firm ………………………………………………. and I sign this letter on their behalf.
SCHEDULE ‘E’ – COMMITMENT TO DESIGN AND FIELD REVIEW 223 Regional District of Central Okanagan Subdivision Servicing Bylaw No. XXXX Page 35 of 45
SCHEDULE ‘F’ – CERTIFICATION OF BYLAW COMPLIANCE
(This form must be submitted after Substantial Performance of the work but before the Regional District will issue a Certificate of Works Installation. A separate form must be submitted by each Engineer.)
Regional District of Central Okanagan Date:…………………………….. 1450 KLO Road Kelowna, B.C. V1W 3Z4
Dear Sir:
RE: ………………………………………………………………………………………………………………………………..…………………. (Legal Description and Address of Subdivision)
1. The undersigned Engineer hereby certifies that:
(a) I have fulfilled my obligations for field reviews as outlined in the Subdivision Bylaw, and the previously submitted “Commitment to Design and Field Review”, (b) those works of the subdivision opposite my initials in the previously submitted “Commitment to Design and Field Review” substantially comply in all material respects with; (i) the applicable provisions and requirements of the Subdivision Bylaw. (ii) the design drawings and supporting documents submitted in support of the application for subdivision. (c) I have enclosed the final record drawings and supporting documents prepared by me for this subdivision. (d) I am an Engineer licensed to practice in the Province of British Columbia.
Signed this ……. day of ………………, 20…… ) By the Owner’s Engineer in the presence of:
……………………………………………………... ) …………………………………………….………. Name of Witness Engineer’s Name ) ……………………………………………………... ) …………………………………………….………. Signature of Witness Engineer’s Signature ) ……………………………………………………... ) Occupation of Witness ) If the Owner’s Engineer is a member of a firm, complete the following:
I am a member of the firm ………………………………………………. and I sign this letter on their behalf.
SCHEDULE ‘F’ – CERTIFICATION OF BYLAW COMPLIANCE 224 Regional District of Central Okanagan Subdivision Servicing Bylaw No. XXXX Page 36 of 45
SCHEDULE ‘G’ – MAINTENANCE SECURITY AGREEMENT
THIS AGREEMENT made this ………… day of …………………………………….., 20…..
BETWEEN:
REGIONAL DISTRICT OF CENTRAL OKANAGAN, of 1450 KLO Road in the city of Kelowna, in the Province of British Columbia
(hereinafter called the “Regional District”)
OF THE FIRST PART AND:
(hereinafter called the “Owner”)
OF THE SECOND PART
WHEREAS the Owner is the registered Owner or holder of a Registered Right to Purchase Lands and premises situate, lying and being in the Regional District of Central Okanagan, Province of British Columbia, and more particularly known and described as:
(hereinafter called the “Lands”);
AND WHEREAS the Owner’s Engineer has certified that the Owner has attained substantial performance of the subdivision of the Lands, and a Certificate of Works Installation has been issued by the Regional District.
AND WHEREAS the Owner is desirous of entering into this Agreement with the Regional District pursuant to the provisions of the Subdivision Servicing Bylaw to warrant the construction and installation of all works in order to obtain approval from the Approving Officer for the subdivision plan.
NOW THIS AGREEMENT WITNESSETH that in consideration of the premises and of the mutual covenants and agreements herein contained, the parties hereto covenant and agree as follows:
1. In this Agreement, unless the context otherwise requires all words and expressions must have the same meaning assigned to them as like word or expressions contained in the Definitions Section of the Subdivision Servicing Bylaw of the Regional District.
2. The Owner covenants and agrees to warrant for a period of eighteen (18) months from the date of execution of this Agreement any works or services which were installed or constructed as a requirement of the provisions of the Subdivision Servicing Bylaw.
3. The Owner covenants and agrees that any defects or deficiencies that appear prior to the expiration of this Agreement will be corrected within 10 working days after the date of written
SCHEDULE ‘G’ – MAINTENANCE SECURITY AGREEMENT 225 Regional District of Central Okanagan Subdivision Servicing Bylaw No. XXXX Page 37 of 45
notification by the Regional District.
4. The Owner agrees that the works for which this Agreement applies are those works listed below and initialled by the Owner:
…… sewage works (Initial applicable works below and cross …… water works out and initial non-applicable works) …… geotechnical
5. The cost of all work required to correct any defects or deficiencies shall be at the expense of the Owner. The Owner shall employ only bondable contractors to carry out and complete the work.
6. The Owner shall obtain and provide to the Regional District, upon request and free of charge, true copies of all contracts and sub-contracts entered into by the Owner or its contractors and relating to the works.
7. The Regional District covenants and agrees to schedule with the Owner a site visit at least forty five (45) days prior to the expiry date of this Agreement to inspect the works and determine what deficiencies or defects, if any, exist. Upon completion of the site visit the Regional District will notify the Owner, in writing, at least thirty (30) days prior to the expiry date of this Agreement what deficiencies or defects, if any, exist.
8. The Owner covenants and agrees that he shall cause all deficiencies and defects identified during the site visit to be corrected to the satisfaction of the Regional District no later than seven days prior to the expiry date of this Agreement hereinafter called the “Completion Date”.
9. The decision of the Regional District shall be final and binding on all parties hereto in determining whether or not the works or any part thereof has been corrected and completed in accordance with the provisions of this Agreement.
10. Prior to the issuance of a Certificate of Works Installation by the Regional District and as security for the due and proper performance by the Owner of all his covenants and agreements herein contained, the Owner shall deposit with the Regional District an unconditional, irrevocable and automatically renewing letter of credit, bank draft or cash, drawn on a chartered bank in Canada for a term of not less than eighteen (18) months, in the amount of ………………………………………… ($…………), which is equal to the amount required pursuant to Section 9.4.1 b of the Subdivision Servicing Bylaw.
11. The Owner agrees that if the required corrections, or any part thereof, are not completed in accordance with the provisions of this Agreement, the Regional District may draw funds from the security provided under Section 10 of this Agreement and the Regional District may complete the work at the expense of the Owner. The cost of the corrections shall be deducted from security held by the Regional District and the balance of the security less any administration fees and costs incurred by the Regional District will be returned to the Owner at the date of expiration of this Agreement. If there is insufficient money on deposit with the Regional District by reason of the security deposit, then the Owner will pay such deficiency to the Regional District immediately upon receipt of an invoice from the Regional District. It is understood and agreed that the Regional District may do such work either by itself, or by contractors employed by the Regional District.
12. The Owner agrees that he shall submit registered copies of all applicable plans, agreements and
SCHEDULE ‘G’ – MAINTENANCE SECURITY AGREEMENT 226 Regional District of Central Okanagan Subdivision Servicing Bylaw No. XXXX Page 38 of 45
documentation for each statutory right of way, covenant, and easement to the Regional District prior to the completion date and that the Regional District shall not be required to release the balance of the security, if any, until such time as the Regional District is in receipt of these plans, agreements and documentation as required.
13. The Owner covenants and agrees to indemnify and save harmless the Regional District, its Board, officers, agents, and employees from and against all actions, proceedings, costs, damages, expenses, claims and demands whatsoever and by whomever brought or made against the Regional District or its Board, officers, agents and employees, resulting directly or indirectly from the maintenance, construction, installation, or correction of the works and services.
14. In consideration of due and proper performance by the Owner of his covenants herein contained, the Regional District covenants and agrees to permit the Owner to carry out and perform the work.
15. Any demand or notice required or permitted to be given under the provisions of this Agreement must be in writing and may be given by mailing such notice by prepaid registered post to the party concerned at the address for such party first above recited, and any such notice or demand mailed as aforesaid shall be deemed to have been received by the party to whom it is addressed on the second business day after the date of posting thereof.
16. It is understood and agreed that the Regional District has made no representations, covenants, warranties, guarantees, promises, or agreements, oral or otherwise, with the Owner other than those contained in this contract.
17. Gender specific terms in this bylaw include both genders, words in the singular include the plural, and words in the plural include the singular.
18. This Agreement and the terms, covenants, and conditions herein contained shall enure to the benefit of and be binding upon the parties hereto and their respective heirs, executors, administrators, successors, and assigns.
SCHEDULE ‘G’ – MAINTENANCE SECURITY AGREEMENT 227 Regional District of Central Okanagan Subdivision Servicing Bylaw No. XXXX Page 39 of 45
IN WITNESS WHEREOF the parties hereto have executed this Agreement at the Regional District of Central Okanagan, Province of British Columbia, the day and year above written.
Signed by the Regional District in the presence of: ) REGIONAL DISTRICT OF CENTRAL OKANAGAN By its Authorized Signatories:
……………………………………………………... ) Name of Witness ) …………………………………………….………. ……………………………………………………... ) …………………………………………….………. Signature of Witness ) ……………………………………………………... ) Occupation of Witness )
If Owner is an Individual: Signed By the Owner in the presence of: ) ……………………………………………………... ) …………………………………………….………. Name of Witness Owner’s Name ) ……………………………………………………... ) …………………………………………….………. Signature of Witness Owner’s Signature ) ……………………………………………………... ) Occupation of Witness )
If Owner is a Company: Signed By the Owner in the presence of: ) ……………………………………………………... ) …………………………………………….………. Name of Witness Company Name ) By its Authorized Signatories: ……………………………………………………... ) Signature of Witness ) …………………………………………….………. ……………………………………………………... ) …………………………………………….………. Occupation of Witness )
Required Attachments: Appendix ‘A’: Attach letter of credit, photocopy of bank draft, or photocopy of cash receipt. Appendix ‘B’: Attach list of all applicable plans, agreements and documentation for each statutory right of way, covenant, and easement.
SCHEDULE ‘G’ – MAINTENANCE SECURITY AGREEMENT 228 Regional District of Central Okanagan Subdivision Servicing Bylaw No. XXXX Page 40 of 45
SCHEDULE ‘H’ – SUBDIVISION SERVICING AGREEMENT
THIS AGREEMENT made this ………… day of …………………………………….., 20…..
BETWEEN:
REGIONAL DISTRICT OF CENTRAL OKANAGAN, of 1450 KLO Road in the city of Kelowna, in the Province of British Columbia
(hereinafter called the “Regional District”)
OF THE FIRST PART AND:
(hereinafter called the “Owner”)
OF THE SECOND PART
WHEREAS the Owner is the registered Owner or holder of a Registered Right to Purchase Lands and premises situate, lying and being in the Regional District of Central Okanagan, Province of British Columbia, and more particularly known and described as:
(hereinafter called the “Lands”);
AND WHEREAS the Owner wishes to subdivide the Lands, or part thereof, in the manner shown on a Subdivision Plan which has been submitted by the Owner to the Approving Officer and the Regional District for approval. A copy of said plan is attached hereto as Appendix ‘A’, and is hereinafter the “Subdivision Plan”;
AND WHEREAS the Owner is desirous of entering into this Agreement with the Regional District pursuant to the provisions of Section 509 of the Local Government Act, in order to obtain approval from the Approving Officer for the Subdivision Plan prior to the completion of the construction and installation of all works required under the provisions of the Subdivision Servicing Bylaw to be constructed and installed by the Owner.
NOW THIS AGREEMENT WITNESSETH that in consideration of the premises and of the mutual covenants and agreements herein contained, the parties hereto covenant and agree as follows:
1. In this Agreement, unless the context otherwise requires all words and expressions shall have the same meaning assigned to them as like word or expressions contained in the Definitions Section of the Subdivision Servicing Bylaw of the Regional District.
2. The Owner covenants and agrees to construct and install on the Lands and offsite, as the case may be, in accordance with the plans and specifications marked “Approved for Construction” by the Regional District and initialled by each of the parties hereto for identification, the following works:
SCHEDULE ‘H’ – SUBDIVISION SERVICING AGREEMENT 229 Regional District of Central Okanagan Subdivision Servicing Bylaw No. XXXX Page 41 of 45
…… sewage works (Initial applicable works below and cross …… water works out and initial non-applicable works) …… geotechnical
3. Each of the parties hereto acknowledge having in its or his possession a true copy of the aforesaid plans and specifications, hereinafter called the “Approved Engineering Plans”, and acknowledge and agree that the Approved Engineering Plans are hereby incorporated into and made part of this Agreement and are attached as Appendix ‘B’.
4. The Owner covenants and agrees that upon substantial performance of the work as certified by the Owner’s Engineer and approved by the Regional District the Owner will enter into a Maintenance Security Agreement, as contained in Schedule ‘G’ of the Subdivision Servicing Bylaw, to warrant for the maintenance of the work for a period of eighteen months.
5. All work must be carried out by the Owner or his contractors in accordance with the Approved Engineering Plans, and in accordance with the provisions of the Subdivision Servicing Bylaw which is currently in force. Where the provisions of the Approved Engineering Plans and the Subdivision Servicing Bylaw conflict, the more stringent provisions shall apply.
6. The cost of all work herein shall be at the expense of the Owner. The Owner must employ only bondable contractors to carry out and complete the work.
7. The Owner must obtain and provide to the Regional District upon request and free of charge true copies of all contracts and sub-contracts entered into by the Owner or its contractors and relating works.
8. The decision of the Regional District shall be final and binding on all parties hereto in determining whether or not the work or any part thereof has been carried out and completed in accordance with the provisions of this Agreement.
9. As soon as the Owner is satisfied that he has caused the work to be completed, and prior to issuance of a Certificate of Works Installation, the Owner shall submit to the Regional District record drawings as per Section 9.3.
10. The Owner shall cause all work herein to be carried out and completed not later than the day of ……………………, 20…… (hereinafter called the “Completion Date”).
11. Prior to obtaining approval of the subdivision by the Approving Officer, the Owner shall: (a) pay all arrears of property taxes chargeable against the Lands, and; (b) pay all currently assessed property taxes as levied against the Lands. 12. Prior to final approval and as security for the due and proper performance by the Owner of all his covenants and agreements herein contained, the Owner shall deposit with the Regional District an unconditional, irrevocable and automatically renewing letter of credit, bank draft, or cash, drawn on a chartered bank in Canada for a term of not less than twelve (12) months. The letter of credit shall be in the amount of ……………………………… ($…………), which is equal to the amount required pursuant to Section 9.4.1 b of the Subdivision Servicing Bylaw. 13. The Owner agrees that if the works, or any part thereof, is not completed in accordance with the provisions of this Agreement by the Completion Date, or if the Owner shall be in default of any of
SCHEDULE ‘H’ – SUBDIVISION SERVICING AGREEMENT 230 Regional District of Central Okanagan Subdivision Servicing Bylaw No. XXXX Page 42 of 45
his covenants herein contained, and such default shall continue for a period of fourteen (14) days after notice thereof has been given by the Regional District to the Owner, the Regional District may call for and receive funds secured by the letter of credit and the Regional District may complete the works at the expense of the Owner and deduct from any fund held by the Regional District as security hereunder, the cost of such completion, and the balance of the security, if any, will be returned to the Owner less any administration fees and costs incurred by the Regional District. If there is insufficient money on deposit with the Regional District by reason of the security deposit, then the Owner will pay such deficiency to the Regional District immediately upon receipt of an invoice from the Regional District. It is understood and agreed that the Regional District may complete such works either by itself, or by contractors employed by the Regional District.
14. The Regional District will consent to a reduction in the amount secured by the letter of credit, or cash, from time to time in accordance with the following: (a) The credit reduction will be equal to the cost of works completed, minus a 10% holdback, as submitted by the Owner’s Engineer and as approved by the Regional District, and; (b) no reduction will be allowed for an amount which represents less than 10% of the total cost of construction and installation of the works; and (c) no reduction to the letter of credit will be allowed which reduces its value to less than the sum of the amounts held under Section 5.9.1 (b) (iii) and (iv) of the Subdivision Servicing Bylaw. 15. The Owner covenants and agrees to indemnify and save harmless the Regional District, its Board, officers, agents, and employees from and against all actions, proceedings, costs, damages, expenses, claims and demands whatsoever and by whomever brought or made against the Regional District or its Board, officers, agents and employees, resulting directly or indirectly from the design, construction, or installation of the works.
16. The Owner acknowledges and agrees that the Regional District will not issue Building Permits on any of the parcels created by the subdivision of the Lands, and no building shall occur on the Lands until the Certificate of Works Installation has been issued by the Regional District.
17. The Owner covenants and agrees that the Owner shall give all prospective purchasers a copy of this Agreement and bring their attention to Section 16 of this Agreement which restricts their ability to apply for a building permit.
18. In consideration of due and proper performance by the Owner of his covenants herein contained, the Regional District covenants and agrees to permit the Owner to carry out and perform the work.
19. Any demand or notice required or permitted to be given under the provisions of this Agreement must be in writing and may be given by mailing such notice by prepaid registered post to the party concerned at the address for such party first above recited, and any such notice or demand mailed as aforesaid must be deemed to have been received by the party to whom it is addressed on the second business day after the date of posting thereof.
20. The Owner acknowledges and agrees that the works become the property of the Regional District or the agency having jurisdiction upon issuance of a Certificate of Works Installation by the Regional District. Notwithstanding the above, nothing herein contained must derogate from the obligation of the Owner to maintain the works for a period of eighteen (18) months following the
SCHEDULE ‘H’ – SUBDIVISION SERVICING AGREEMENT 231 Regional District of Central Okanagan Subdivision Servicing Bylaw No. XXXX Page 43 of 45
date of Works Installation as aforesaid.
21. It is understood and agreed that the Regional District has made no representations, covenants, warranties, guarantees, promises or agreements, oral or otherwise, with the Owner other than those contained in this contract.
22. Gender specific terms in this bylaw include both genders, words in the singular include the plural, and words in the plural include the singular.
23. This Agreement and the terms, covenants, and conditions herein contained shall enure to the benefit of and be binding upon the parties hereto and their respective heirs, executors, administrators, successors and assigns.
SCHEDULE ‘H’ – SUBDIVISION SERVICING AGREEMENT 232 Regional District of Central Okanagan Subdivision Servicing Bylaw No. XXXX Page 44 of 45
IN WITNESS WHEREOF the parties hereto have executed this Agreement at the Regional District of Central Okanagan, Province of British Columbia, the day and year above written.
Signed by the Regional District in the presence of: ) REGIONAL DISTRICT OF CENTRAL OKANAGAN By its Authorized Signatories:
……………………………………………………... ) Name of Witness ) …………………………………………….………. ……………………………………………………... ) …………………………………………….………. Signature of Witness ) ……………………………………………………... ) Occupation of Witness )
If Owner is an Individual: Signed By the Owner in the presence of: ) ……………………………………………………... ) …………………………………………….………. Name of Witness Owner’s Name ) ……………………………………………………... ) …………………………………………….………. Signature of Witness Owner’s Signature ) ……………………………………………………... ) Occupation of Witness )
If Owner is a Company: Signed By the Owner in the presence of: ) ……………………………………………………... ) …………………………………………….………. Name of Witness Company Name ) By its Authorized Signatories: ……………………………………………………... ) Signature of Witness ) …………………………………………….………. ……………………………………………………... ) …………………………………………….………. Occupation of Witness )
Required Attachments: Appendix ‘A’: Attach a copy of the Subdivision Plan as submitted by the Owner to the Approving Officer and the Regional District for Approval. Appendix ‘B’: Attach a copy of the Approved Engineering Plans initialled by each of the parties. Appendix ‘C’: Attach letter of credit.
SCHEDULE ‘H’ – SUBDIVISION SERVICING AGREEMENT 233 Regional District of Central Okanagan Subdivision Servicing Bylaw No. XXXX Page 45 of 45
SCHEDULE ‘I’ – STANDARD DRAWINGS
1. List of Standard Drawings:
Drawing No. Drawing Title W1 R.D.C.O. Park Irrigation Service W2 R.D.C.O. Pit Meter Detail
SCHEDULE ‘I’ – STANDARD DRAWINGS 234 235 236 Regional Board
Report
TO: Regional Board
FROM: Peter Rotheisler Manager of Environmental Services
DATE: October 4, 2016
SUBJECT: Westside Regional Wastewater Treatment Plant Operational Review
Voting Entitlement: Stakeholder Vote – Weighted Vote - West Kelowna and Peachland – LGA 209.1
Purpose: To seek endorsement of the recommendations in the Opus DaytonKnight report pertaining to the Westside Regional Wastewater Treatment Plant Operational Review.
Executive Summary: Opus DaytonKnight Consultants were awarded the contract to complete an operational review of the Westside Regional Wastewater Treatment Plant. The Westside Regional Wastewater Treatment Plant Stakeholder Select Committee and the Regional Board approved the budget and Terms of Reference for the review. The draft review was presented to Westside Regional Wastewater Treatment Plant Stakeholder Select Committee, City of West Kelowna Council, District of Peachland Council, and Westbank First Nation Council for comments between November, 2015 and March, 2016.
The findings of this review indicate the operational and maintenance costs at the Westside Regional Wastewater Treatment Plant are competitive with other comparable wastewater treatment plants and that the current site is suitable for approximately the next fifty years.
RECOMMENDATION:
THAT the Board endorse the recommendations in the Opus DaytonKnight report dated April 11, 2016.
Respectfully Submitted:
P. Rotheisler, M.Sc., P.Ag. C. Radford Manager of Environmental Services Director of Community Services
Approved for Board’s Consideration
Brian Reardon, CAO
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Implications of Recommendation:
Strategic Plan: Ensure services are effective and efficient, to maximize benefit/cost
Financial: Operate in an accountable and fiscally responsible manner.
Background: On June 10, 2015 the Westside Regional Wastewater Treatment Plant Stakeholder Select Committee approved and recommended the Terms of Reference and budget for the Westside Regional Wastewater Treatment Plant Operational Review to the Regional Board. On June 11, 2015 the Regional Board approved the budget and Terms of Reference. On June 9, 2016, the Westside Regional Wastewater Treatment Plant Stakeholder Select Committee voted unanimously in favour to recommend the approval of the attached Westside Regional Wastewater Treatment Plant Review final report to the Regional Board.
The objective of the operational review was to evaluate the most fundamental aspects of the Westside Regional Wastewater Treatment Plant over a fifty year time horizon (2015 to 2065) including:
Evaluating the current treatment process to identify opportunities for improvement. Providing the life expectancy of the current site and infrastructure and a review of potential new sites. Completing a cost of service review.
Opus DaytonKnight Consultants (Opus) were awarded the contract for the project in July, 2015. Opus completed an initial draft of the operational review in November, 2015. Regional District staff provided comments on the initial draft. Subsequently, a final draft was produced in late, 2015. The final draft was circulated to the Westside Regional Wastewater Treatment Plant Stakeholder Select Committee, including technical staff, for comments in late, 2015. In addition, Opus provided comprehensive presentations on the final draft to the Select Committee and to the City of West Kelowna Council, District of Peachland Council, and Westbank First Nation Council in early, 2016. Based on feedback received the attached final report was produced.
Key findings of the attached final report include: The current site is projected to be adequate to handle average daily wastewater flows until 2065 (based on expansion and enhancement of existing processes). Several new potential sites were identified for relocation or expansion of the wastewater treatment plant, however each site is associated with major drawbacks, which require further consideration. A high-level review of operation and maintenance (O&M) costs determined that the Westside Regional Wastewater Treatment Plant has comparable O&M costs to comparable facilities (Whistler and Penticton).
Key recommendations provided in the report include: Several recommendations related to reviewing enhanced wastewater treatment options to ensure the site can accommodate wastewater flows to 2065. Complete a study to review DCCs and reserves to ensure they are adequate for future requirements (project was initiated in 2016).
238 WWTP Operational Review Report Page 3
Use of solids (biosolids) digestion/resource recovery, possibly at an alternative site (currently being evaluated by UBCO). Conduct a “Value for Money” audit to confirm overhead costs charged to the Westside Regional Wastewater Treatment Plant.
Considerations not applicable to this report: Policy General Organizational Legal/Statutory Authority
Attachment(s):
1. Westside Regional WWTP Service Review
239
Westside Regional WWTP Service Review Regional District of Central Okanagan
240 241 Westside Regional WWTP Service Review i
Contents
Executive Summary ...... 1
1 Introduction ...... 5 1.1 Report Objectives ...... 5 1.2 List of Abbreviations and Acronyms ...... 5 1.3 References ...... 5
2 Information Review ...... 6
3 Analysis of Treatment Processes ...... 7 3.1 Projected Wastewater Flows ...... 7 3.2 Influent Screens ...... 9 3.3 Vortex Grit Chambers ...... 9 3.4 Primary Clarifiers ...... 9 3.5 Bioreactors ...... 11 3.6 Secondary Clarifiers ...... 17 3.7 Tertiary Filters ...... 19 3.8 UV Disinfection ...... 19 3.9 Outfall and Effluent Pump Station ...... 19 3.10 Waste Solids Thickening and Dewatering ...... 19 3.11 Primary Sludge Fermenters ...... 20 3.12 Process Reliability ...... 21 3.13 Effluent and Residual Quality ...... 22 3.14 Energy Efficiency ...... 23 3.15 Cost ...... 24
4 Site Life Expectancy Assessment ...... 25 4.1 Current Site ...... 25 4.2 Potential Future Sites ...... 26 4.3 Distributed or Satellite Plants ...... 28
5 Cost of Service Review ...... 29 5.1 Operations ...... 29 5.2 Asset Management ...... 32 5.3 Overhead ...... 33
6 Recommendations ...... 35
Appendix A: Potential Future Site Figures ...... 36
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Westside Regional WWTP Service Review ii
LIST OF TABLES
Table E-1: Expansion Costs Beyond Stage 4 (to projected 2065 Wastewater Flows)...... E-2 Table 1-1: List of Background Documents ...... 6 Table 2-1: Westside Regional WWTP Effluent Criteria ...... 7 Table 3-1: Total Peak Hydraulic Capacity of Existing Unit Process ...... 8 Table 3-2: Fermenter Capacity Assessment ...... 21 Table 3-3: BC Wastewater Regulation Reliability Requirements for Wastewater Facilities ...... 22 Table 3-4: Expansion Costs Beyond Stage 4 (to Projected 2065 Wastewater Flows) ...... 24 Table 4-1: Potential New Options ...... 26 Table 4-2: GIS Search Constraints ...... 27 Table 4-3: RDCO West Side Trunk Sewer ...... 27 Table 5-1: Westside Regional WWTP Funding (Neilson-Welch, 2010; RDCO, 2015) ...... 33 Table 5-2: Overhead Costs Charged to the Westside Regional WWTP ...... 33 Table 5-3: 2015 Budgeted Expenses for the Westside Regional WWTP ...... 34 Table 5-4: WWTP Overhead Costs ...... 34
LIST OF FIGURES
Figure 3-1 – Long range (50 year) wastewater flow projections ...... 8 Figure 3-2 – Final Effluent Annual Average TN and TP ...... 11 Figure 3-3 – Daily Final Effluent Nitrogen Species and Temperature (2013 – 2015) ...... 12 Figure 3-4 - Westside Regional WWTP GPS-X Process Schematic for Stage 3 ...... 14 Figure 3-5 – Seasonal VFA and PE Soluble COD trend ...... 14 Figure 5-1 – O&M Cost Summary for Westside Regional, Penticton, and Whistler WWTPs ...... 31
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Executive Summary
The Regional District of Central Okanagan (RDCO) retained Opus DaytonKnight Consultants Ltd. (Opus) to evaluate the most fundamental aspects of the Westside Regional Wastewater Treatment Plant (WWTP) for a 50 year planning horizon of 2065. The high-level objectives included: a. Evaluate the current wastewater treatment process at the Westside Regional WWTP to identify opportunities for improvement in the current to long term (30 to 50 years) through process or operational change; b. Provide the life expectancy of the current site and review potential new sites that should be considered after the current site has reached maximum capacity or a critical social or environmental threshold that prevents future use or expansion (e.g. odour); and, c. Complete a cost of service review to identify if there are opportunities to reduce costs and improve service through changes in process, operation, management, or governance.
With the current unit processes, the plant has an average day flow treatment capacity of 16.8 MLD. The hydraulic structures have an instantaneous peak flow capacity of 33.6 MLD.
The treatment capacity of the existing site (based on expansion of the existing unit processes) is limited to the projected average day wastewater flows of 22.4 MLD in 2045. Due to the physical constraints of the existing site, the limiting processes are the bioreactors and the primary and secondary clarifiers (outfall and effluent pump station notwithstanding). It appears that all of the other processes can be expanded on the existing site to handle the projected average day wastewater flows of 36.6 MLD in 2065. It should be emphasized that the timeline for reaching the capacity constraint is dependent on the actual growth of the sewerage area and service population. As a consequence, the RDCO should review the wastewater flow projections on a regular basis (3 to 5 years), in conjunction with development planning projections for each of the major stakeholders.
Our assessment of the Westside Regional WWTP was focused on alternative processes to increase the treatment capacity of the BNR process and the primary and secondary clarifiers. Our assessment also included a high-level review of potential future sites and a cost-of-service review.
Primary Treatment
The existing configuration of the site allows for up to 7 primary clarifiers. Primary clarifier performance and capacity could be increased if needed through chemically enhanced primary treatment (CEPT). CEPT decreases the settling time which effectively reduces the required area of the primary clarifiers. Chemical addition could be selectively used during periods of peak flows and loading, to minimize costs, although chemical use would increase as flows approached design capacity.
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CEPT would allow the Westside Regional WWTP to meet the 2065 primary servicing requirements on the existing site using the 7 primary clarifiers currently planned for the Stage 4 upgrade with selective chemical dosing during peak flows and loads.
Bioreactors
The existing bioreactors provide a treatment capacity of 33.6 MLD, which meets the Stage 3 design criteria. The physical constraints of the existing site only allow for an additional 2 bioreactors which would bring the total biological nutrient removal (BNR) capacity to 44.8 MLD. An alternative biological nutrient removal process is therefore required for the existing site to treat the projected wastewater flows of 2065.
One option is to incorporate an integrated fixed film activated sludge (IFAS) into the existing continuous flow process. A second option is to convert the WWTP to a granular sludge process. A third option is to retrofit the bioreactors with a Bio-Mag system. All three processes would reduce the footprint required for biological treatment, and allow treatment of the additional wastewater flows to 2065.
If the bioreactors are successfully converted to a different process using available technology such as IFAS, the site can meet the 2065 treatment capacity requirements within the existing site constraints. This will require increased chemical use to meet the effluent discharge criteria (i.e. methanol for denitrification and alum or similar for removal of residual phosphorus). Alternatively, it is likely that the ongoing development of other alternatives such the granular sludge process will allow expansion within the existing bioreactor footprint with less or possibly no chemical use.
Secondary Clarifiers
The secondary clarifiers will be the remaining bottleneck that limits the current site to the projected 2045 wastewater flows. Two alternatives for expanding this process step beyond 2045 would be expansion of the site into the adjoining nursery to allow future addition of four more secondary clarifiers, or replacement of some of the secondary clarifiers with an alternative solids separation process such as dissolved air flotation (DAF) or Actiflo®.
Of note, if the bioreactors are converted to a granular sludge process the need for additional, or possibly all, secondary clarifiers is eliminated. The granular sludge process could in effect increase the overall site capacity by 40% to 50%.
Cost Summary
The high-level cost estimate of converting processes at the existing Westside Regional WWTP to service the projected 2065 wastewater flows is $23.25 million as detailed in Table E-1 below.
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Table E-1: Expansion Costs Beyond Stage 4 (to Projected 2065 Wastewater Flows) Item Capital Cost Primary Treatment 3rd influent screen $400,000 3rd and 4th vortex grit chambers $600,000 4th, 5th, 6th, and 7th Primary Clarifiers NO ADDITIONAL COST Implement CEPT $500,000 Secondary Treatment Conventional biological process to IFAS $6,000,000 2 additional secondary clarifiers, flow split and piping NO ADDITIONAL COST 2 DAF units to supplement secondary clarifiers $1,500,000 3rd Fermenter $500,000 Tertiary Treatment Twin UV disinfection $1,000,000 Outfall and Effluent Pump Station Improvements $2,000,000 General Site Requirements Expand Odour Control $1,000,000 General Electric and Civil Upgrades $2,000,000 Subtotal $15,500,000 Contingency Allowance, 50 percent $7,750,000 Total $23,250,000
The cost of second tertiary treatment plant located in a major development node (e.g. Westbank First Nation IR10 or the District of Peachland) designed for an average day flow of 14,200 m3 is estimated at $50 million to $60 million, not including modifications to the conveyance system, land purchase or community consultation (existing WWTP to Stage 4 only).
The long term operation and maintenance costs will be significantly greater for operation of two plants compared to one. Although the unit processes would be smaller at the two plants, the same sequence of processes would be required as at a single plant (e.g., headworks, primary treatment, biological treatment, solids handling, etc.). Therefore it is apparent that a single facility is more cost-effective, provided that the site space is sufficient to serve the build-out population, and the option of expanding the existing site into the adjacent nursery should be revisited if feasible. However, identification of an alternate site can still be beneficial for the long-term future (e.g. for a dedicated solids processing facility with reserve recovery).
Potential Future Sites
Potential new sites were investigated using a desktop GIS spatial analysis searching for all possible sites meeting the following specific criteria: within reasonable distance to the existing trunk collection system, distance from odour receptors, proximity to lake for outfall and highway for biosolids hauling, minimum footprint size, and acceptable site topography. From this search, 3 sites met the criteria within West Kelowna land zoned as agricultural. While one site meeting the GIS search criteria within Peachland was eliminated as a regional facility, it could potentially function as a Peachland only satellite facility albeit with a severe public impact. A second possible satellite plant could be considered with IR 9 based primarily on the significant growth projected in that area. The existence of their drinking water intake near the limited outfall options makes this option equally unfavorable. In summary, there are sites
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available for consideration but potential drawbacks appear to outweigh the associated costs of a new WWTP combined with costs for changes to the collection system.
Cost of Service Review
In order to assess operation and maintenance (O&M) costs for the Westside Regional WWTP, two other similar BNR type plants were compared; Penticton and Whistler. The WWTP are similar in liquid and biosolids treatment, are relatively new, and are similar in size. Our high- level review found that the Westside Regional WWTP has comparable O&M costs to that of Penticton and Whistler when compared on a dollars per cubic meter of treated wastewater. The Westside Regional WWTP has an estimated average treatment cost of $0.56 per cubic meter treated while Penticton and Whistler are $0.54 per cubic meter and $0.55 per cubic meter, respectively.
It is difficult to compare overhead costs between WWTPs. The previous recommendation to the regional board to conduct a ‘Value for Money’ audit of the overhead charges and services provided by the RDCO to the Westside Regional WWTP is reiterated. Such an audit would allow for a formal documentation of the overhead services provided by the RDCO to the Westside Regional WWTP.
Recommendations
Opportunities for expanding site capacity that should be evaluated in a future feasibility study include the following:
conversion of biological process to IFAS or other low-footprint BNR technology to treat 2065 wastewater flows; replacement of at least some of the secondary clarifiers with an alternate solids separation technology such as DAF to treat the projected 2065 wastewater flows; develop a plan for beneficial use of solid residuals produced at the WWTP; Study to review DCCs and reserves to ensure these are adequate going forward; use of CEPT during periods of high flow and loads to allow 7 primary clarifiers to treat the projected 2065 wastewater flows; use of 7 primary clarifiers without chemical addition to treat the projected 2065 wastewater flows, with the resulting increased loading in the primary clarifier overflow being accommodated by the biological and secondary solids separation processes; use of solids digestion/resource recovery, possibly at an alternative site; and, conduct a ‘Value for Money’ audit to confirm the overhead costs charged to the Westside Regional WWTP.
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1 Introduction
The Regional District of Central Okanagan (RDCO) retained Opus DaytonKnight Consultants Ltd. (Opus) to evaluate the most fundamental aspects of the Westside Regional Wastewater Treatment Plant (WWTP). The outcomes from this evaluation of the site, processes, and cost of service are intended to form the basis for a later and more detailed Master Plan.
1.1 Report Objectives
The high-level objectives of this report include: a. Evaluate the current wastewater treatment process at the Westside Regional WWTP to identify opportunities for improvement in the current to long term (30 to 50 years) through process or operational change; b. Provide the life expectancy of the current site and review potential new sites that should be considered after the current site has reached maximum capacity or a critical social or environmental threshold that prevents future use or expansion (e.g. odour); and c. Complete a cost of service review to identify if there are opportunities to reduce costs and improve service through changes in process, operation, management, or governance.
1.2 List of Abbreviations and Acronyms
BNR Biological nutrient removal BOD Biological Oxygen Demand CEPT Chemically enhanced primary treatment COD Chemical Oxygen Demand MOE BC Ministry of Environment MDD Maximum Day Demand mg/L milligrams per litre MLD mega litres per day MPN Most Probable Number N Nitrogen OC Operating Certificate P Phosphorus RDCO Regional District of Central Okanagan TSS Total Suspended Solids WWTP Wastewater Treatment Plant
1.3 References
The RDCO provided previous reports, drawings, financial information, and GIS data to assist in the evaluation of the Westside Regional WWTP. Opus also obtained financial information from the City of Penticton and the Resort Municipality of Whistler, both of which operate biological nutrient removal processes from the wastewater from a similar population size. The documents referenced are listed in Table 1-1.
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Table 1-1: List of Background Documents Title/Description Author/Source Year Stage 2 Bioreactor Drawings Reid Crowther 1993 Stage 2 Upgrades Pre-Design Report AECOM 2010 Service Funding and Governance Neilson-Welch 2010 Stage 3 Upgrades Issued for Construction Drawings AECOM 2010 Stage 3 Upgrade Completion Report RDCO 2012 Odour Mitigation and Foul Air Assessment Study Letter Report AECOM 2013 – Final 2013 CORD West Kelowna Odour Survey Discovery Research 2013 Regional Growth Strategy – Schedule ‘A’ RDCO 2013 District of West Kelowna – Schedule B Zoning Bylaw Map DWK 2013 National Water & Wastewater Benchmarking Initiative – Public AECOM 2013 Report Annual Report 2014 RDCO 2014 Grant Application for Assessment of Odor and Land Application RDCO 2014 Impacts of Disposal of Westside Municipal Biosolids Casa Loma Sewage Pump Station – Proposed Design AECOM 2014 Modification Biofilter Retrofits CH2MHILL 2014 Treated Municipal Wastewater Irrigation Feasibility SUMMIT 2015 Assessment Operating Information for the WWTP RDCO 2014 City of Penticton WWTP Financial Information Penticton 2014 Resort Municipality of Whistler WWTP Financial Information Whistler 2014 Financial Information for the WWTP and Trunk System RDCO 2014/2015 2015-2019 Financial Plan RDCO 2015 Stakeholder Select Committee Meeting RDCO 2015/02/18 City of West Kelowna GIS Data West Kelowna 2015 District of Peachland GIS Data RDCO 2015 Westbank First Nation GIS Data RDCO 2015
2 Information Review
The Westside Regional WWTP utilizes a biological nutrient removal (BNR) process, aluminum sulphate for supplemental phosphorus removal, Aqua Cloth Media filters, and an ultraviolet disinfection system to provide a high quality final effluent for discharge to Okanagan Lake. The Westside Regional WWTP is located on Gellatly Road in the West Kelowna and is operated by the RDCO. In addition to the District of West Kelowna, the WWTP services development in the District of Peachland, Westbank First Nation Reserve 9 and 10 and RDCO.
In 1994, the WWTP’s BNR process was converted from the University of Capetown (UCT) process, to the Westbank process, in conjunction with the District’s Stage 1 Expansion, as part of a 4-staged upgrade plan to maximize the utilization of the plant footprint. Each of the 4 stages was designed to provide an additional average day flow capacity of 5,600 m3/d. Stage 5 is planned as an enhanced process technology. In 2010, design and construction of the Stage 3 upgrades was commissioned by RDCO, bringing the average day flow capacity to 16,800 m3/d.
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The Westside Regional WWTP operates under BC Ministry of Environment (MOE), Operational Certificate (OC) #PE 11652. The OC specifies effluent and operating criteria for the WWTP (Table 2-1). The effluent total phosphorus limit was decreased from 0.25 mg P/L to 0.20 mg P/L on January 1, 2014.
Table 2-1: Westside Regional WWTP Effluent Criteria Parameter Effluent Limit Biological Oxygen Demand (BOD5) <10 mg/L Total Suspended Solids (TSS) <10 mg/L Total Phosphorus (TP) <0.20 mg P/L (annual average) Total Nitrogen (TN) <6 mg N/L (annual average) Fecal Coliform <50/100mL MPN
The RDCO Regional Growth Strategy (Bylaw No. 1336, 2013) projects a 1.8% (linear) annual population growth in the Region by 2036. Historically, the population growth peaked in the 1990’s at 4.0% and slowed to 2.1% from 2000 to 2011. The annual average wastewater flow to the Westside Regional WWTP has grown at a much higher rate from 1990 to 2014, but this is a reflection of growth in the sewer collection system to service existing housing. Since most of the existing single family housing has been serviced, the expectation is that growth in wastewater flow will converge with population growth in the near future. 3 Analysis of Treatment Processes
Our review of Westside Regional WWTP was based on an assessment of the current and available treatment capacity using the existing unit processes until the 50 year planning horizon of 2065. The physical site constraints limit the expansion of the existing BNR process and secondary clarifiers. In undertaking this task we developed a model of the current BNR process and benchmarked the plant against similar BNR plant performance and loading criteria. Different modelling scenarios were developed to see what processes options could expand the plant capacity within the current plant site footprint. The development of plant options and review of the current plant performance was done in collaboration with Dr. James Barnard, who acted as senior technical advisor for the project team.
3.1 Projected Wastewater Flows
For the purposes of projecting wastewater flow rates to the Westside Regional WWTP, a compounded 2.5% growth rate was assumed (Figure 3-1). The assumed 2.5% compounded growth rate is conservative (higher) compared to the Regional Growth Strategy population projection. The higher growth rate accounts for the fact that wastewater will outpace population growth over the short term, and it allows for the planned growth in IR 10 identified as part of the Casa Loma Sewage Pump Station, Proposed Design Modifications (AECOM Technical Memorandum). The 2.5% compound rate translates to a 7.2% annualized linear growth rate over the 50 year planning timeline and is similar to the “Medium Growth Rate” scenario in the 2010 Stage 3 WWTP Pre-design Report (AECOM).
Projecting wastewater flows at a 2.5% annual growth rate means that the Stage 3 average day flow capacity of 16,800 m3/d could be reached by the year 2034. The planned Stage 4 average day flow
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capacity 22,400 m3/d would be reached by the year 2045. The average day wastewater flows in the design horizon year of 2065 would be 36,600 m3/d.
The wastewater flow projections are approximations, and the actual year in which the Stage 3 and Stage 4 plant capacity will be reached depends upon population growth, water use practices/water conservation, and additional inflow and infiltration from sewer deterioration.
40,000 36,600 m3/day 35,000
30,000 (m3/d)
25,000 22,400 m3/day Flow 20,000 16,800 m3/day Day 15,000 Historical Data 10,000 Average Projected Flow 5,000 Design ADF 0
Figure 3-1 – Long range (50 year) wastewater flow projections
The capacity of major unit processes were evaluated to identify potential bottlenecks in the system; the total installed peak hydraulic capacity (not average day flow capacity) of each unit process is provided in Table 3-1. As shown, the existing site is limited by the capacity of the bioreactors and the secondary clarifiers. In the proposed configuration for the Stage 4 expansion the total peak hydraulic capacity of the existing site is about 44.8MLD which is projected to occur in the year 2045 at the 2.5% compound growth rate.
Table 3-1: Total Peak Hydraulic Capacity of Existing Unit Process Site Build-out with Existing Unit Stage 3 Unit Processes at 2.5% Annual Growth Unit Process Capacity Total Projected Total Projected Year (MLD) Units Capacity Year of Units Capacity of Capacity (MLD) Capacity (MLD) Influent Screens 36 2 72.0 2064 3 108.0 2080 Vortex Grit Chambers 26.4 2 52.7 2051 4 b 105.2 2094 Primary Clarifiers 8.4 3 a 25.2 2015 7 58.8 2056 Bioreactors (Stage 1-3) 5.6 6 33.6 2034 8 44.8 2045 Secondary Clarifiers 5.6 6 33.6 2034 8 44.8 2045 Tertiary Filters 22 4 88.0 2072 4 88.0 2072 UV Disinfection 5.6 6 33.6 2034 14 b 78.4 2067 Overall Plant 33.6 2034 - 44.8 2045 Notes: a) There are currently only 3 primary clarifiers. The addition of a fourth primary clarifier would add an additional 8.4 MLD of hydraulic capacity bringing the total installed capacity of 33.6 MLD. b) Assumes that space is available for additional units.
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Each of the unit processes listed in Table 3-1 are discussed in more detail below. The costs presented are the incremental costs for expanding the plant after the Stage 4 upgrade is completed to service the projected design horizon wastewater flows in 2065.
3.2 Influent Screens
The influent screening building was designed to split flow into three channels. Perforated plate type mechanical screens are installed on two of the three channels to allow the third channel to service as an emergency by-pass.
The peak flow capacity of the two existing influent screens is 72 MLD, which is close to the estimated peak flows 73.1 MLD in 2065. The existing hydraulic capacity should therefore be sufficient until the design horizon of 2065 and allow one channel to remain as an emergency bypass. However, flow projections should be reviewed regularly to determine if a third screen will be required. In any case, a third (redundant) screen may be desired.
Cost estimate (2015 dollars): $400,000 for a third screen – adopted from AECOM, 2010.
3.3 Vortex Grit Chambers
There are currently two vortex grit chambers. The peak hour capacity of each vortex grit chamber is 26.4 MLD which currently allows one to operate while the other provides redundancy.
A third vortex grit chamber will be required as peak wastewater flows approach 33.6 MLD. The third vortex grit chamber will provide for peak flows until the design horizon of 2065. A fourth will be required to provide for redundancy.
Cost estimate (2015 dollars): $300,000 for each grit chamber, for a total of $600,000 – adopted from AECOM, 2010.
3.4 Primary Clarifiers
The three existing primary clarifiers are designed for a total peak hourly flow of 25.2 MLD. A fourth primary clarifier is needed to bring the hydraulic capacity up to the Stage 3 design flows of 33.6 MLD.
The existing configuration of the site allows for up to 7 primary clarifiers. Primary clarifier performance and capacity could be increased if needed through chemically enhanced primary treatment (CEPT). Chemical addition could be selectively used during periods of peak flows and loading, to minimize costs, although chemical use would increase as flows approached design capacity. On-site testing would be required to determine the optimum coagulant and dose. CEPT decreases the settling time, which effectively reduces the required area of the primary clarifiers. The additional of alum (and possibly polymer) through this process has the added advantage of removing dissolved phosphorus which would provide a factor of safety if the biological treatment process is upgraded to Integrate Fixed-film Activated Sludge (IFAS) technology (see Section 3.5.4). It should be noted that the addition of alum at the head end of the plant will significantly reduce the concentration of phosphorus reaching the biological process and this could impact biological phosphorus removal. Addition of coagulating chemicals may have an (unknown) impact on the soluble and particulate
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fractions of COD, N and P in the primary tank overflow, and it would also increase the amount of primary sludge available for fermentation.
Clarifier overflow rates and BOD/TSS removal increase with implementation of CEPT. With CEPT, BOD removal rates can be between 50% to 80% with overflow rates between 70 m3/m2/d and 30 m3/m2/d, respectively. This compares to conventional primary settling, which achieves 25% to 40% BOD reduction for overflow rates between 50 m3/m2/d and 30 m3/m2/d, respectively. Consequently, primary clarifier area can be reduced by over 50% with the addition of CEPT, with an increase in BOD removal from 40% to 50%. This is because overflow rates can be greater when precipitation is chemically enhanced.
Conventional primary settling will remove 50% to 70% of TSS, while CEPT will remove 80% to 90% of TSS. On a dry weight basis, this will result in between 100 kg/d to 140 kg/d of solids removed in the conventional process. With the CEPT process, an assumed alum dose of 10 mg/L would produce about 43 kg/d of aluminum hydroxide precipitate along with 160 kg/d to 180 kg/d of dry solids. Assuming a moisture content of about 95%, and a specific gravity of 1.05, this results in wet volumes of between 2.1 m3/d to 2.9 m3/d for a conventional process, and 4.3 m3/d to 4.7 m3/d for the CEPT process. The CEPT process has increased sludge primary yields because more solids are being removed and coagulant precipitate is added to that volume. It is important to note that enhanced removal of primary solids using CEPT results in lower solids production downstream in the biological treatment process (i.e. lower yield of waste activated sludge), as well as a lower aeration requirement.
Advantages of CEPT Disadvantages of CEPT Reduces aeration requirements in the Control issue of leaving enough P for biological biological process, and reduces the treatment but low enough to meet effluent amount of waste biological sludge standards. produced. Competing reactions for hydroxides can decrease Alum stabilizes P removal. dose efficiency. Reduces required primary clarifier area. Removes alkalinity before nitrification process, Additional primary sludge available for which can result in low pH levels that inhibit fermentation. nitrification. Removes BOD in the primary tanks that could have been used downstream for denitrification. Can result in larger anoxic tanks or an increased need for methanol for nitrogen removal. Potential impacts on performance of biological process due to changes in soluble and particulate functions of COD, N and P. Does not remove polyphosphates which will be converted to orthophosphate in the bioprocess.
CEPT would allow the Westside Regional WWTP to meet the 2065 primary servicing requirements on the existing site using the 7 primary clarifiers currently planned for the Stage 4 upgrade with selective chemical dosing during peak flows and loads.
Cost estimate (2015 dollars): Capital cost of implementing CEPT is low (chemical storage and injection facilities) – allow $500,000.
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Additional Sludge Handling Costs: Requires more detailed investigation – estimated at 10% to 20% increase in overall waste solids during periods when CEPT is in use.
3.5 Bioreactors
The existing bioreactors provide a capacity of 33.6 MLD, which meets the Stage 3 design criteria. Additional bioreactors and/or an alternative biological nutrient removal process can be used to accommodate the 73.1 MLD peak flows in 2065. Under the current BNR process upgrade plan, the projected build-out of the site will occur when the Stage 4 upgrades are complete. As discussed in Section 2, based on the assumed compound growth rate of 2.5% the Stage 4 capacity could be reached by the year 2045. It should be emphasized that the timeline for reaching the capacity constraint is dependent on the actual growth of the sewerage area and service population. As a consequence, the RDCO should review the wastewater flow projections on a regular basis (3 to 5 years), in conjunction with development planning projections for each of the major stakeholders.
3.5.1 Existing Process Characterization
Historical data and annual reports provided by WWTP staff were reviewed, to characterize existing treatment and identify any operational issues. The annual average effluent TP criteria has been met even at the more stringent 0.20 mg P/L standard implemented on January 1, 2014 (Figure 3-2). However, in recent years the annual average effluent TN has exceeded OC objectives. A closer examination of the measured effluent nitrogen data was made to assess the process operation and provide an explanation of the excursions.
Figure 3-2 – Final Effluent Annual Average TN and TP
0.50 10.0
0.45 9.0
0.40 8.0
0.35 7.0 (mg/L)
(mg/L) 0.30 6.0
0.25 5.0 Concentration
0.20 4.0 Concentration
0.15 3.0 Nitrogen
Phosphorus
0.10 2.0 Total Total
0.05 1.0
0.00 0.0 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014
Average of Total Phosphorus ‐ Final Effluent Average of Total Nitrogen ‐ Final Effluent
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Figure 3-3 depicts the measured final effluent nitrogen species (TN, ammonia and nitrate/nitrite) alongside effluent temperature for 2013 to 2014. Prior to 2014, final effluent TN excursions above the limit of 6.0 mg N/L were associated with elevated nitrate concentrations. This suggests that denitrification (i.e., the part of the biological process by which nitrate is converted to inert nitrogen gas) was not operating efficiently. Through the latter part of 2013, process improvements appear to have significantly improved denitrification.
Figure 3-3 – Daily Final Effluent Nitrogen Species and Temperature (2013 – 2015) 24 24
22 22
20 20
18 18
16 16
14 14 N/L)
(°C) 12 12 (mg 10 10
8 8 Temperature 6 6 Concentration
4 4
2 2 Nitrogen
0 0 Jul Jul Jul Jan Jan Jan Jan Jun Jun Jun ‐ ‐ ‐ Oct Oct Apr Apr Apr Sep Sep Feb Sep Feb Dec Dec Aug Aug Aug ‐ ‐ ‐ Nov ‐ Nov ‐ ‐ ‐ Mar Mar Mar ‐ ‐ ‐ ‐ ‐ May May ‐ ‐ May ‐ ‐ May ‐ ‐ ‐ ‐ ‐ ‐ ‐ ‐ ‐ ‐ ‐ ‐ ‐ ‐ ‐ 30 25 26 01 31 26 27 30 25 26 28 23 01 26 27 28 25 23 26 24 27 22 29 24 25 27 22 02 27 28 01 31 26 27 2013 2014 2015 Ammonia Nitrate /Nitrite Total Nitrogen FE Temperature
During the March/April period of 2014 and 2015, the WWTP experienced a loss of nitrification efficiency, which caused the effluent ammonia to increase to above 12 mg N/L. The short-term nitrification losses were significant events which for 2014 was the principle cause for the WWTP not meeting its annual average effluent nitrogen objective. A variety of factors may have contributed to the loss of nitrification capacity, and these were investigated as part of this assessment. The nitrification inhibition events of 2014 and 2015 appear to be both associated with seasonal low wastewater temperatures (Figure 3-3). As wastewater temperature decreases, the activity of bacteria that perform the nitrification function also decreases. As a consequence, for the same population and loading, lower wastewater temperatures will result in decreased ammonia oxidation rates. The loss of activity can be mitigated by maintaining a higher sludge retention time (SRT) during low temperature periods by lowering the wasting rate. The longer SRT allows a larger nitrifier bacteria population to grow and offset the decrease in activity.
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The steep loss in nitrification capacity for both the 2014 and 2015 events was preceded by annual low wastewater temperature. To compensate for an increasing effluent ammonia as measured by the weekly average, operational protocol specifies that sludge wasting be decreased by 10% to allow for an increase in SRT. Under this protocol, the SRT is assessed every Wednesday when nutrient data are available. Under normal circumstances, this is an effective approach for controlling effluent nitrogen. However, for the 2015 event it appears that the effluent ammonia began to rapidly increase in the days between Wednesday, February 25 and Wednesday, March 4, when manual SRT adjustments would typically be assessed. On February 25, the average effluent ammonia concentration was 0.57 mg/L, suggesting no change under the existing protocol. On March 4, the weekly effluent ammonia concentration was 2.51 mg/L, indicating a need to decrease wasting.
A rapid increase in effluent ammonia can indicate a toxic substance entering the treatment plant which standard operating procedure (SOP) dictates an increase in wasting. A further complication of the process at the time was the availability of sludge storage and hauling capacity. Through the winter, the ability to waste sludge is limited by the ability of the hauling contractor to dispose of dewatered sludge which is influenced by road blockages, the 12 hour return trip schedule, availability of the contractor and poor weather conditions. Under ideal conditions, the decision to increase or decrease wasting is made based on a variety of factors that can change quickly. Winter conditions and associated temperature effects on process kinetics and impacts on operational functions further complicates the decision-making process. To address this, it is recommended that the SOP for adjusting the wasting rate based on effluent ammonia be conducted on a more frequent basis through the winter (i.e. 2 -3 times per week rather that once a week as currently specified). The more frequent assessment can help capture changing conditions and allow for more time to respond.
In addition, pH conditions in the bioreactor are historically low (pH 6.4 to 6.6) which tends to slow nitrification. During the winter the combination of low pH and low temperature could be contributing to lower nitrification efficiency. If elevated effluent ammonia events continue to be a feature of winter operation, addition of a source of alkalinity to the bioreactor should be considered.
3.5.2 Modelling of Treatment Process
To assist in assessment of the treatment process, a Hydromantis GPS-X (version 6.4) model was developed, based on available wastewater fractionation data and process kinetic variables. GPS-X is a commercial wastewater treatment simulation software package that allows modelling of the biological nutrient removal process. The model was validated using available water quality characteristics for internal process streams, including primary effluent, fermenter VFA, and final effluent. To simplify model development and analyses, the GPS-X simulation was limited to the Stage 3 upgrades only (Figure 3-4).
The Westside Regional WWTP process consists of three identical, parallel process trains, each with two bioreactors. Simulating only one of the trains reduces the level of complexity of the model while still providing sufficient detail for assessing process dynamics and treatment effectiveness.
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Figure 3-4 - Westside Regional WWTP GPS-X Process Schematic for Stage 3
In general, the model confirmed the AECOM process capacity rating for carbon, nitrogen and phosphorus removal under winter and summer temperature conditions. However, the model highlights some potential issues for operational consideration. In particular, the AECOM process capacity rating was calibrated using primary effluent and fermenter supernatant characterization data acquired during the summer period. Under these elevated temperature conditions, a high level of carbon fermentation in the mainstream wastewater and fermenter could be expected. Under winter conditions and wastewater temperature of 10°C to 12°C, the fermentation capacity would be reduced, due to reduced biological activity. Figure 3-5 provides an illustration of the decrease in VFA and primary effluent (PE) soluble COD for the year 2014. The reduced winter soluble carbon production may necessitate careful management to provide for both phosphate release in the anaerobic cells and denitrification in the anoxic cells. To provide for reliable winter nutrient removal, consideration should be made to increasing the availability of carbon to allow optimal feed to both the anaerobic and anoxic cells. This is discussed further in Section 3.10.
Figure 3-5 – Seasonal VFA and PE Soluble COD trend
Splitter Box ‐ VFA 400
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VFA 100
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0 01/01/2014 07/01/2014 13/01/2014 19/01/2014 25/01/2014 31/01/2014 06/02/2014 12/02/2014 18/02/2014 24/02/2014 02/03/2014 08/03/2014 14/03/2014 20/03/2014 26/03/2014 01/04/2014 07/04/2014 13/04/2014 19/04/2014 25/04/2014 01/05/2014 07/05/2014 13/05/2014 19/05/2014 25/05/2014 31/05/2014 06/06/2014 12/06/2014 18/06/2014 24/06/2014 30/06/2014 06/07/2014 12/07/2014 18/07/2014 24/07/2014 30/07/2014 05/08/2014 11/08/2014 17/08/2014 23/08/2014 29/08/2014 04/09/2014 10/09/2014 16/09/2014 22/09/2014 28/09/2014 04/10/2014 10/10/2014 16/10/2014 22/10/2014 28/10/2014 03/11/2014 09/11/2014 15/11/2014 21/11/2014 27/11/2014 03/12/2014 09/12/2014 15/12/2014 21/12/2014 27/12/2014 123456789101112 Month
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Primary Effluent ‐ Soluble COD 400
350
300 (mg/L)
250
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150 COD
100 Soluble
50
0 01/01/2014 07/01/2014 13/01/2014 19/01/2014 25/01/2014 31/01/2014 06/02/2014 12/02/2014 18/02/2014 24/02/2014 02/03/2014 08/03/2014 14/03/2014 20/03/2014 26/03/2014 01/04/2014 07/04/2014 13/04/2014 19/04/2014 25/04/2014 01/05/2014 07/05/2014 13/05/2014 19/05/2014 25/05/2014 31/05/2014 06/06/2014 12/06/2014 18/06/2014 24/06/2014 30/06/2014 06/07/2014 12/07/2014 18/07/2014 24/07/2014 30/07/2014 05/08/2014 11/08/2014 17/08/2014 23/08/2014 29/08/2014 04/09/2014 10/09/2014 16/09/2014 22/09/2014 28/09/2014 04/10/2014 10/10/2014 16/10/2014 22/10/2014 28/10/2014 03/11/2014 09/11/2014 15/11/2014 21/11/2014 27/11/2014 03/12/2014 09/12/2014 15/12/2014 21/12/2014 27/12/2014 123456789101112 Month
3.5.3 Additional Bioreactors
There is space available on the existing site for an additional two bioreactor trains (of the same design as the existing), which would bring the total capacity to 44.8 MLD (2045). In other words, the existing biological nutrient removal process cannot meet the required treatment capacity of the 2065 design horizon within the boundaries of the existing site. An alternative biological nutrient removal process can be considered to increase capacity within the Stage 4 bioreactor footprint as described below.
3.5.4 Alternative Biological Nutrient Removal Process
In order for the existing site to meet the wastewater flows of 2065, an alternative biological treatment process can be used. One option is to incorporate an integrated fixed film activated sludge (IFAS) into the existing continuous flow process. A second option is to convert the WWTP to a granular sludge process. A third option is to retrofit the bioreactors with a Bio-Mag system. All three processes would reduce the footprint required for biological treatment, and allow treatment of the additional wastewater flows to 2065. The three options are discussed in more detail below. The hydraulic modifications needed to accommodate the alternative processes would have to be reviewed at the pre- design stage.
Only the costs for Option 1 – Upgrade to IFAS were estimated; the cost estimates for IFAS indicate that it is more cost effective to retrofit the Westside Regional WWTP with low-footprint technology for biological nutrient removal rather than build a second tertiary plant. The costs of all three options presented below should be further investigate in a subsequent Master Plan.
3.5.4.1 Option 1 – Upgrade to IFAS
The Stage 3 pre-design report makes reference to a technological adaptation which allows the nitrogen removal capability of the BNR process to be extended. Since nitrogen removal limits the treatment capacity of the current BNR process, any increase in nitrogen removal results in an overall increase in treatment capacity. Activated sludge processes, including BNR, rely on bacteria in suspension in the
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process liquid to carry out wastewater treatment. Control of the treatment process relies on careful management of the biological (activated) sludge inventory.
The IFAS technology involves adding plastic media which are designed to promote growth of bacteria as a biofilm fixed to the media in addition to suspended growth bacteria. More specifically, by adding plastic carrier media within an aerated bioreactor cell, more ammonia oxidizing bacteria can be grown, allowing for a higher nitrogen removal capacity. The disadvantage of this approach is that an external source of carbon will be required to provide for denitrification, which is the final step of nitrogen removal (i.e., conversion of nitrate to nitrogen gas). The IFAS changes would also mean that the process could not be tuned for high phosphorus removal. The IFAS upgrade would necessitate more reliance on addition of alum for meeting the stringent effluent phosphorus objectives.
To provide for assessment of the IFAS option, a proposal was provided by Veolia, a vendor of a patented IFAS process (Appendix A). The proposed improvements and associated costs and capacity were based on upgrading a single treatment train. Therefore, given the projected 4 available treatment trains at build-out, the IFAS upgrade could increase the Westside Regional WWTP average day flow capacity from 22,400 to 36,400 m3/d.
Cost estimate (2015) dollars: $1.5 million per train including equipment and installation x 4 trains (two bioreactors per train) = $6 M.
3.5.4.2 Option 2: Upgrade to a Granular Sludge Process
The granular sludge option is a significant evolution in treatment process, and it also has potential for extending the service life of the existing site. Granular sludge processes are designed to promote growth of dense granules that incorporate features of both suspended bacteria and fixed film carriers. By controlling diffusion of air and substrate through the granule, carbon, nitrogen and phosphorus removal process can take place. In effect, biological nutrient removal can be conducted in a single tank. Another key feature of the granule is that it has a very high settling velocity compared to conventional activated sludge biological solids. Consequently, granular sludge treatment processes need very little secondary clarification capacity and can be conducted in a single tank as a batch process. Given their high footprint, eliminating the need for secondary clarifiers at the Westside WWTP treatment plant site
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could on its own increase the site capacity by 40% to 50%. Additional process efficiencies associated with the ability to carry higher concentrations of bacteria further increase the site capacity.
The first full-scale granular sludge processes that incorporate nutrient removal have only recently been commissioned in Europe, and there are no facilities in North America. Published data from the European facilities indicate that they could meet the current Westside Regional WWTP effluent objective of 6.0 mg N/L, but have not achieved the required total phosphorus removal efficiencies. A granular sludge process (NAREDA) in Holland is able to achieve an effluent total phosphorus of 0.3 mg P/L, which is slightly higher than the Westside Regional WWTP effluent limit of 0.20 mg P/L. However, it is expected that installation and continued improvement to mainstream granular sludge process will accelerate in the next 20 to 30 years, making it a viable technology for extending the existing site service life.
Option 2 - Granular Sludge Cost Estimate (2015 dollars): This is a new and potentially revolutionary technology and as such a cost estimate is not currently available. This may become an economically viable option and should be considered in a subsequent feasibility study, once the process has become fully established.
3.5.4.3 Option 3: Upgrade to a BioMag® System
The BioMag® System is an established small footprint process which can increase the biological treatment capacity and improve settling rates of existing activate sludge treatment processes. The BioMag® System is an attractive option for the Westside Regional WWTP for the following reasons: a. The existing bioreactors can be retrofitted with a BioMag® System. b. Apparent high rates of simultaneous nitrification and denitrification within the BioMag® System which could reduce the effluent nitrogen to well below the required limits. c. With some ferric or Alum addition it would appear that the BioMag® System can produce very low effluent suspended solids and quite low effluent phosphorus without filtration. However, filtration would be recommended but there may not need to be an increase in the filter media requirement.
Disadvantages of the BioMag® System are that the standard aeration system would likely need reconsideration due to the density of the mixed liquor which requires higher mixing energy – the opposite from what we would see with conventional units. Hydraulics may also be impacted since low flows may lead to settlement in pipes. These potential limitations would need to be addressed in the pre-design stages.
Option 3 – BioMag® System Cost Estimate (2015 dollars): The cost to implement and operate a BioMag® System should be investigated in a subsequent study.
3.6 Secondary Clarifiers
There are currently six secondary clarifiers which provides a peak hydraulic capacity of 33.6 MLD. The available space on the existing site only allows for two additional secondary clarifiers, resulting in a total peak hydraulic capacity of 44.8 MLD (based on existing unit processes).
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3.6.1 Additional Secondary Clarifiers
To achieve the design capacity of 73.1 MLD in 2065, a total of 12 secondary clarifiers would be needed. To accommodate the additional clarifiers, the existing site would need to expand into the adjacent nursery and an additional four secondary clarifiers would be needed to treat the projected 2065 wastewater flows (12 secondary clarifiers in total).
Note that Option 1 (implementation of IFAS) discussed above for the alternative bioreactor process would not reduce the required number of secondary clarifiers.
Option 2 for the alternative bioreactor process (conversion of bioreactors to Granular Sludge) would require very little secondary clarification capacity. Option 3 – Upgrade to a BioMag® System would also reduce the capacity required for secondary clarification. Both of these options have the advantage of reducing the number of secondary clarifiers needed, and effectively increasing the overall site capacity and would allow the design horizon (year 2065) wastewater flows to be accommodated within the existing site.
3.6.2 Alternative Secondary Solids Separation Processes
Alternative small-footprint solids separation processes can be used instead of or to supplement gravity settling in conventional secondary clarifiers. Information provided by Veolia indicates that use of Dissolved Air Flotation (DAF) would substantially reduce the area required for biological solids separation compared to conventional secondary clarifiers (use of the Actiflo process would further reduce the footprint). Pressurized, supersaturated effluent is introduced into a tank alongside waste sludge. The supersaturate air forms small bubbles which rise in the tank, carrying suspended solids to the surface. A surface skimmer collects the floating sludge and discharges it to a hopper for pumping to the next process step (e.g. back to bioreactor).
In this scenario, for the Stage 4 expansion, no new secondary clarifiers would be built (i.e. total of 6 secondary clarifiers instead of 8). The DAF units would be constructed in a building occupying the space originally allocated to secondary clarifiers #7 and #8. The DAF process could later be expanded as needed to accommodate 2065 wastewater flows within this available space, and expansion of the WWTP site would not be required.
Sizing and costing of these processes would require a detailed flow and solids loading analysis. However, it can be said that capital costs would be lower and operating costs would be higher compared to conventional secondary clarifiers. Therefore, conventional secondary clarifiers should still be used to the extent possible within the available space, supplemented by a small footprint process such as DAF or Actiflo to handle peak hydraulic and solids loads.
Cost Estimate (2015 dollars): 2 DAF units cost < secondary clarifiers #7 and #8.
The operating costs would be higher for this alternative due to the higher energy demand associated with DAF, and the need for polymer use (advancing technology may greatly reduce or eliminate the need for chemical addition in the near future). Therefore, use of the DAF (or other alternative technology) rather than gravity settling for separation of biological solids should be designed to handle peak flows and loads as far as possible, and the use of gravity settling should be maximized to the
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extent possible. This combination (gravity settling with DAF or other for peak flows and loads) would have to be investigated in more detail to establish realistic capital and operating cost comparisons.
Cost Estimate (2015 dollars): capital cost will be lower for DAF/SC combination compared to twelve SC’s for 2065 capacity.
3.7 Tertiary Filters
There are currently four effluent disc filters operating (three duty and one standby). The peak flow capacity of each disc filter is 22 MLD, creating a total peak capacity of 88 MLD. Therefore, the existing hydraulic capacity should be sufficient to accommodate the design flows of 73.1 MLD in 2065.
Cost estimate (2015 dollars): Nil – no improvements required.
3.8 UV Disinfection
The existing UV disinfection process is designed for peak flows of 33.6 MLD using six banks of bulbs. Due to the small footprint required, it is assumed that there is available space to accommodate additional UV disinfection.
The capacity of the existing UV disinfection process will need to double to accommodate the peak wastewater flows of 2065.
Cost estimate (2015 dollars): $1 million to twin existing process, including channels and flow split.
3.9 Outfall and Effluent Pump Station
Effluent from the plant is pumped to Okanagan Lake via an effluent pump station and an existing outfall pipe and submerged diffuser. The effluent pump station uses screw pumps and has a reported capacity of 440 L/sec, or 38 MLD. However, the outfall capacity is limited to 165 L/sec (or 14.3 MLD). Both of these components must be upgraded to meet the 2045 design flows of 518 L/sec. RDCO is presently investigating improvements to the outfall, or the effluent pump station, or both in parallel to the preparation of this report to increase their capacity to 445 L/sec. An allowance only is carried in this report as the actual approach and costs are being developed by others.
Cost Allowance (2015 dollars): $2 million.
3.10 Waste Solids Thickening and Dewatering
The waste activated sludge from the bioreactors is thickened to 3% to 7% using dissolved air flotation (DAF). Waste sludge from the bioreactors and fermenters is currently dewatered and trucked off-site for disposal.
Dewatering of waste solids is undertaken using the centrifuge process. Analysis of the capacity of the existing centrifuge process and the need for future expansion is not specifically addressed in the 2010 AECOM Pre-design Report, and is beyond the scope of this study. Installation of a third centrifuge
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and/or expansion of the waste biological sludge thickening process may be required to serve the 2065 wastewater flows, particularly if redundant process units are desired. It is assumed that there will be sufficient space on the existing site for these expansions if needed, since these processes have a relatively small space requirement.
Cost Estimate (2015 dollars): N/A.
3.11 Primary Sludge Fermenters
3.11.1 Fermenter Capacity
The Westside Regional WWTP currently utilizes two existing primary sludge (PS) fermenters to generate volatile fatty acids (VFAs) for phosphorus removal. The fermenter acts as a gravity settler allowing PS to settle and thicken. Soluble carbon in the form of VFAs in the fermenter supernatant is transferred to the bioreactor primarily to initiate phosphorus release. VFAs released into the centrate during centrifuge dewatering is also an important source of soluble carbon which enters the bioreactor as part of the PE stream and can be used to optimize denitrification. The objective is to provide sufficient time for hydrolysis and fermentation of the coarse solids to VFAs without allowing methanogenic activity to be established. Since methanogenic activity is also depressed during winter conditions, SRT could be increased to increase VFA production. Monitoring of the headspace methane concentration could be used to precisely control SRT.
Fermenters are typically designed to provide for 6 days retention time of the thickened sludge. Carbonaceous material is hydrolyzed and subsequently fermented to primarily acetic acid and propionic acid, the main source of VFAs to the treatment process. In the presence of VFAs and anaerobic conditions, polyphosphate accumulating organisms (PAOs) release stored phosphate and take up the VFAs as an energy source. When transferred to an aerobic environment the PAOs uptake phosphate in a greater amount than was released. Phosphorus removal is achieved by harvesting the PAOs as wasted sludge. Therefore, reliable production of VFAs is an important process objective.
For the purposes of this report, the capacity of the existing fermenters was assessed to determine upgrade requirements. Based on these estimates (Table 3-2), a third fermenter will be required to meet the year 2065 projected flows assuming current VFA requirements, or other measures can be taken to increase carbon availability as discussed below. If alum is used to enhance primary treatment to increase capacity then phosphate would also be removed resulting in lower VFA requirements for the process.
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Table 3-2: Fermenter Capacity Assessment Stage 3 Stage 5 Fermenter Design Parameter Stage 4 (existing) (Year 2065) Number of Units 2 2 3 Sludge Storage per unit, m3 173 173 173 Total Sludge Storage, m3 346 346 519 Thickened Primary Sludge Production (summer ADF), m3 39.3 52.41 84.21 Sludge Retention Time, days 8.8 6.6 6.2 Note: 1. Sludge production estimated based on Stage 3 mass balance
The first approach to increase the availability of carbon should be to increase the fermenter capacity. As shown in Table 3-2, Stage 5 would require 3 fermenters in total. This cost would be incurred regardless of whether or not alternative small footprint processes such as IFAS and DAF are implemented to avoid site expansion to 2065 (it appears that sufficient space is available on the existing site for a third fermenter).
A second option for increasing fermenter VFA production may be to increase sludge loading by diverting a small stream of TWAS or fats, oils or grease (FOGs). Fermentation of TWAS will increase VFA content but will also increase orthophosphate concentration in the supernatant. This approach is appropriate only under close control and conditions when there is excess P removal capacity in the mainstream process. A third option is to provide for increased insulation and heating for the fermenter. This in effect is a retro-fit option which may not be easily implemented or cost-effective. A final possible option for increasing carbon availability is to install bulk storage and dosing facilities to allow use of a commercial source (i.e., methanol). It is expected that addition of a bulk carbon source will be necessary to increase the nitrogen removal capacity beyond the rated capacity. Due to the increased operating costs and higher associated carbon footprint, use of an external carbon source should be considered an option of last resort.
Cost Estimate (2015 dollars): Fermenter #3 approximately $500,000.
3.12 Process Reliability
Reliability of the WWTP process components was assessed based on BC Ministry of Environment standards. Table 3-3 provides a summary of the expected reliability standards, as documented in the BC Wastewater Regulation, for critical treatment components at the Westside WWTP. Based on these standards, the components meet the reliability requirements.
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Table 3-3: BC Wastewater Regulation Reliability Requirements for Wastewater Facilities BC Ministry of Environment Critical Treatment Reliability Category I Requirements Components for Available Backup Notes Westside Regional Treatment Capacity When
Power Standard WWTP System Largest Unit Out Source
of Service (%) Meets Reliability Blowers multiple units n/a yes Yes two 150Hp blowers with one 200 Hp standby Aeration basins multiple units 75 yes Yes 6 bioreactors installed Disinfection basins multiple units 75 yes Yes 3 channel with 2 UV banks per channel Primary multiple units 50 yes Yes 3 clarifiers installed sedimentation Final sedimentation multiple units 75 yes Yes 6 final clarifiers installed Degritting n/a - optional Yes 1 vortex style unit installed Effluent filters 2 minimum 75 yes Yes 3 units installed, each rated for 65% peak flow
3.13 Effluent and Residual Quality
The alternative options discussed elsewhere in this report are designed to maintain effluent quality at the current requirements of the plant Operational Certificate.
Maintaining the quality of solid residuals resulting from wastewater treatment to meet requirements for beneficial use depends in part on an effective source control program, to limit and/or prevent the discharge of problem contaminants to sewer (e.g., metals, problem organic compounds, etc.). The alternative and use of DAF for solids separation process options discussed in this report (e.g., conversion of biological process to IFAS, expansion to meet future capacity at the existing site or at an alternative site), should have little impact on the quantity and quality of the residual solids produced. Use of CEPT may potentially capture more metals from the liquid stream, incorporating them into the solids.
Digestion of residual solids can be used to significantly reduce the quantity of residual solids produced (by up to 50%). However, the existing WWTP site cannot accommodate conventional anaerobic digestion, due to limited space, substantial expansion of the existing site or construction of a separate solids processing facility at an alternate site would be needed if conventional anaerobic digestion were to be implemented. Recovery of resources (e.g., biogas) could also be considered. However, transport of waste solids to an alternative site and management of high-strength sidestreams would be problematic if the site was far from the existing WWTP (high-strength sidestreams could be discharged to the sewer collection system but generally separate pre-treatment of sidestreams is preferred before discharge to the main liquid stream).
Alternative small-footprint processes could be considered. The need for solids treatment and the type of treatment used will depend to some extent on the planned end use of the product.
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Trace Organic Compounds (TOrC) include “common household chemicals, pharmaceuticals, personal care products, pesticides, herbicides, and innumerable industrial chemicals”. In today’s society tens of thousands of chemicals are used. These chemicals can be transported to wastewater treatment plants and if not removed or converted to other substances, they may be discharged to surface water or ground water. Some of the chemicals are complex and not easily broken down in the treatment process, and can persist in surface and ground water for long periods of time. There are also concerns regarding the potential impacts of these chemicals on drinking water and biosolids application to land (WERF, 2008)1.
Mechanisms which have been shown to degrade or remove TOrC include volatilization, adsorption (transfer from aqueous phase to solid phase), biological degradation, chemical oxidation, membrane filtration, and ultraviolet radiation. Research has shown that the efficiency of TOrC removal is linked with solids retention time (SRT) in biological treatment processes. It has also been shown that treatment plants using both nitrification and denitrification and/or high sludge ages (approximately 15 days) exhibit better removal for a variety of TOrC than for plants operating with lower SRTs. The diverse bacterial community that is present with nitrification and denitrification and the longer exposure time may be responsible for improved removal of TOrC, and this has implications for process selection for future upgrades to biological processes at wastewater treatment facilities (WERF, 2008)1. The Westside Regional WWTP is designed and operated for full nitrification and denitrification (long SRT), and this is likely to continue into the foreseeable future.
Source control initiatives aimed at TOrC could include public and private sector education, and the implementation of product bans or other control measures by Federal and/or Provincial authorities.
The existing Operating Certificate limits for the Westside Regional WWTP are very stringent, and there seems little reason to believe that this will change in the foreseeable future. As noted earlier in this report, the plant total nitrogen limit has been exceeded during winter operation, and this should be the focus of process optimization (close process monitoring, SRT control to maximize nitrification, possible use of methanol for denitrification during cold temperature operation).
3.14 Energy Efficiency
The largest energy demand at biological activated sludge wastewater treatment plants is due to aeration of the activated sludge tanks. Maximizing efficiency of energy use should include detailed evaluation of existing aeration blower efficiency, available alternative technologies (e.g., turbo blowers), and enhanced control of aeration to avoid wasting energy. Our recent experience at the Norm Wood Environmental Centre in the City of Campbell River found that upgrading the aging constant-speed centrifugal aeration blowers with variable-speed turbo blowers resulted in a reduction in energy requirements of between 15 and 20 percent.
Energy efficiency at the WWTP can also be improved by incorporating of solar power and LED lighting, heat recovery from the wastewater stream, and plant power audits to evaluate opportunities for energy savings.
1 Water Environment Research Foundation (WERF), 2008. Technical Brief: Trace Organic Compounds and Implications for Wastewater Treatment. WERF / IWA Publishing. Alexandria, VA. 2008.
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3.15 Cost
As noted elsewhere in this report, the Stage 4 expansion at the existing WWTP site will provide treatment for an average day flow of 16,800 m3. Conversion to other processes can be used to increase the capacity of the site to treat the projected 2065 wastewater flows, or a second tertiary WWTP could be constructed. A direct comparison of the cost to increase the capacity of the existing site and the cost to construct and operate a second tertiary WWTP is difficult due to, for example, the uncertainty in the cost of future low footprint technologies, treatment capacity requirements at the second set, changes to the configuration of the collection system, pumping requirements, and a new outfall.
To assist in this comparison, an order of magnitude cost estimate was developed for a second tertiary wastewater treatment plant with an average day flow treatment capacity of 14,200 m3 – a flow equivalent to the increased capacity of Westside Regional WWTP through the conversion of existing unit processes discussed in the preceding sections.
Approximate cost of a second tertiary WWTP:
Cost of second tertiary treatment plant located in a major development node (e.g. Westbank First Nation IR10 or the District of Peachland) designed for an average day flow of 14,200 m3 is estimated at $50 million to $60 million, not including modifications to the conveyance system, land purchase or community consultation (existing WWTP to Stage 4 only).
Approximate cost to convert to other processes:
Cost of converting processes at existing wastewater treatment plant to increase the treatment capacity by 14,200 m3 to treat the projected 2065 wastewater flows is estimated at $23.25 million (see Table 3-4 below for cost summary and Sections 3.2 through 3.8 for more detail). Table 3-4: Expansion Costs Beyond Stage 4 (to Projected 2065 Wastewater Flows) Item Capital Cost Primary Treatment 3rd influent screen $400,000 3rd and 4th vortex grit chambers $600,000 4th, 5th, 6th, and 7th Primary Clarifiers NO ADDITIONAL COST Implement CEPT $500,000 Secondary Treatment Conventional biological process to IFAS $6,000,000 2 additional secondary clarifiers, flow split and piping NO ADDITIONAL COST 2 DAF units to supplement secondary clarifiers $1,500,000 3rd Fermenter $500,000 Tertiary Treatment Twin UV disinfection $1,000,000 Outfall and Effluent Pump Station Improvements to outfall and/or effluent pump station $2,000,000 General Site Requirements Expand Odour Control $1,000,000 General Electric and Civil Upgrades $2,000,000 Subtotal $15,500,000 Contingency Allowance, 50 percent $7,750,000 Total $23,250,000
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The long term operation and maintenance costs will be significantly greater for operation of two plants compared to one. Although the unit processes would be smaller at the two plants, the same sequence of processes would be required as at a single plant (e.g., headworks, primary treatment, biological treatment, solids handling, etc.). Therefore it is apparent that a single facility is more cost-effective, provided that the site space is sufficient to serve the build-out wastewater flows, and the option of expanding the existing site into the adjacent nursery should be revisited if feasible. However, identification of an alternate site can still be beneficial for the long-term future (e.g. for a dedicated solids processing facility with reserve recovery).
As noted earlier in this report and as summarized in Section 4 below, expansion of the existing plant processes on the existing site will serve the projected 2045 wastewater flows.
Opportunities for expanding site capacity that should be evaluated in a future feasibility study include the following:
conversion of biological process to IFAS or other low-footprint BNR technology to treat the projected 2065 projected wastewater flows; replacement of at least some of the secondary clarifiers with an alternate solids separation technology such as DAF to treat the projected 2065 projected wastewater flows; use of CEPT during periods of high flow and loads to allow 7 primary clarifiers to treat the projected 2065 projected wastewater flows; use of 7 primary clarifiers without chemical addition to treat the projected 2065 projected wastewater flows, with the resulting increased loading in the primary clarifier overflow being accommodated by the biological and secondary solids separation processes; use of solids digestion/resource recovery at an alternative site; and expansion of the existing site boundary to allow servicing of the projected 2065 wastewater flows using the existing processes. 4 Site Life Expectancy Assessment
This section presents a high level, desk-top based analysis of future WWTP sites which can be considered as the current facility approaches its site space limitation. In this section, ultimate site life expectancy is taken to mean the future time when the existing property is no longer the most affordable location for expansion to meet new capacity.
4.1 Current Site
As described in Section 3, the capacity of the existing site (using the existing unit processes) is limited to the projected 2045 wastewater flows. The governing processes are the bioreactors and the secondary clarifiers (outfall and effluent pump station notwithstanding). It appears that all of the other processes can be expanded on the existing site to handle the projected 2065 wastewater flows. If the bioreactors are successfully converted to a different process using available technology such as IFAS, the site can meet the 2065 capacity within the existing site constraints. This will require increased chemical use to meet the effluent discharge criteria (i.e. methanol for denitrification and alum or similar for removal of residual phosphorus). Alternatively, it is likely that the ongoing
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development of other alternatives such the granular sludge process will allow expansion within the existing bioreactor footprint with low or possibly no chemical use.
The secondary clarifiers will be the remaining bottleneck that limits the current site to the projected 2045 wastewater flows. Two alternatives for expanding this process step beyond 2045 would be expansion of the site into the adjoining nursery to allow future addition of four more secondary clarifiers (twelve in total), or replacement of some of the secondary clarifiers with an alternative solids separation process such as DAF within the boundaries of the current site. Expansion of the existing site could also allow implementation of solids digestion with resource recovery.
4.2 Potential Future Sites
A review of potential new sites was made for future planning when the current site reaches capacity or a critical social (e.g. odour) or environmental (e.g. disposal of effluent) threshold prevents future use or expansion. It is both timely and prudent to consider new sites now so that land use planning and acquisition can be considered well in advance of the time when needed. In framing this review, Table 4-1 summaries the three general options considered in this report for increasing land space.
Table 4-1: Potential New Options No. Name Description Remarks 1 Retain existing Additional space through land Land can be leased back to nursery until it plant site acquisition of adjacent nursery is needed in the future. Possible agreement property. could include seasonal supply of reclaimed water for irrigation. 2 New Site Locate and develop an entirely Existing collection system and existing new site with sufficient future service area are primary factors in viability space. of this option. 3 Distributed Sites Build satellite plants in areas of Effluent disposal and a regional biosolids new growth, or relocate and extend management plan are primary factors in the biosolids portion of the existing these options. plant to create space.
This section presents the approach, analysis, and discussion of the options considered.
4.2.1 Site Selection Methodology for New Sites
Potential areas for a new WWTP site within the west side of the RDCO were screened against the constraints listed in Table 4-2. Screening was first performed using ArcGIS (version 10.3) and shapefiles available via the RDCO mapping website. Data not available on RDCO’s website were obtained from individual jurisdictions. Once the GIS results were obtained, a site by site review was made to confirm the actual practicality of using the site from both constructability and political basis.
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Table 4-2: GIS Search Constraints Constraint Description Remarks Solids Within 2 km of Highway 97 Trucking of biosolids within urban area. Outfall Within 3 km of Okanagan Lake’s Practical limit of effluent conveyance to a lake shoreline outfall. Odour More than 100 metre (or 200 metres) Minimize proximity to odour receptors and from existing residential areas possibility of negative odour complaints. Collection Within one kilometre of 450 mm and For new trunk sewer routing efficiency, to larger or 600 mm and larger diameter ensure accessible transfer of liquids from trunk sewer pipe (); and, major sewer lines. Space An area greater than 0.04 km2 Minimum footprint of a WWTP with more space than existing site. Topography Slopes of the land less than 4 percent. The process structures of a WWTP are set to elevations which provide gravity flow within the plant and minimize pumping. Elevation a Less than 35 metres higher than Practical limit of sewage pump vertical lift. collection system. Notes: a) Constraint applied manually and not using GIS.
4.2.2 Results for Potential New Sites
Given the significant cost in replacing the collection trunk sewers, close attention was paid to minimizing the level of changes in replacing or redirecting the trunk sewers. In addition, if the site were to be used for solids processing only, proximity to a trunk sewer would be desirable so that high- strength side streams such as centrate could be easily routed bac to the liquid treatment facilities (preferably after pre-treatment). Therefore, the largest diameter trunk pipe size was used to limit locations considered. However, the GIS analysis showed a high sensitivity to the selection of limiting trunk sewer size in the search criteria. Initially, the search criteria used 600 mm. Since the resulting areas were so limited, the criteria was expanded to 450 mm. Table 4-3 shows the number of metres of each trunk sewer size (300 mm and larger) in the collection system (including Peachland), and the probable cost to replace that level of collection system.
Table 4-3: RDCO West Side Trunk Sewer Number Total Linear Metres Cost to Replace Total Cost to Size (mm) of Pipes in System ($/m) Replace $ 300 to 350 205 25,700 350 $8,995,000 375 to 400 140 12,100 400 $4,840,000 450 100 9,600 450 $4,320,000 525 34 2,300 600 $1,380,000 600 to 630 42 3,400 700 $2,380,000 675 18 1,600 800 $1,280,000 750 6 350 900 $315,000
As shown in Table 4-4, the total replacement value of the trunk collection system is over $24 million (before contingency) excluding manholes and lift stations. If manholes, lift stations and contingency were applied, the total cost or replace the trunk collection system would be over $50 million.
Therefore, minimizing the level of replacement is a major factor. In considering this fact, the GIS analysis assumed trunk sewers 600 mm and smaller would remain and that a new WWTP would need
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to be within one (1) kilometer of a 600 mm trunk. A second, wider search used the cut-off size of 450 mm trunk sewer. The following two sections discuss these results.
4.2.2.1 600 mm Trunk Sewer Limitation
Figure 4-1 in Appendix A shows the resulting land areas within 1 kilometer of a 600 mm trunk sewer (for both 100 metre and 200 metre residential area setbacks). While the GIS search found no new potential areas greater than 0.4 km2 in area where a 200 metre setback could be provided, it did result in potential new (or supplementary) sites within West Kelowna, all zoned as “agricultural – A1” providing a 100 metre setback including:
Existing site and adjacent Bylands nursery property. South of Westbank Business District - Brown Road (near Harmax Farm Road). North of Boucherie Road. East of Welton Road. Undeveloped land south of IR 9. South of Boucherie Road. Immediately east of IR 9.
These results capture sites that could be used as an entirely new site or as a possible sister site for headworks, primary treatment (including fermenters), and equalization whereby space allocated for those unit process at the existing site can be converted to additional secondary treatment. However, this is neither typical nor recommended.
The other GIS qualifying site within the Westbank business area and IR 9 was eliminated as this option is not justifiable for public impact reasons.
4.2.2.2 450 mm Trunk Sewer Limitation
Figure 4-2 in Appendix A shows the resulting land areas within 1 kilometer of a 450 mm trunk sewer (for both 100 metre and 200 metre residential area setbacks). However, only some of these locations are viable upon inspection of existing land use and terrain. Areas were eliminated if they were located on steep slope or were higher than elevation 400 metres (based on the practical limit of pumping head from the existing collection system). Potential new sites include:
Peachland – Existing site of the Peachland Elementary School. This option assumes the elementary school can be relocated and includes the capital cost of public engagement involved with building a new elementary school. Public impact is severe. West Kelowna – sites identified in previous section.
While the Peachland site is technically possible, this location is academic only. The forcemain used to convey Peachland sewage to the Westside Regional WWTP does not have capacity to convey the future flows and would have to be replaced or twinned. A large raw water pump station to convey the flows in the reverse direction further complicates. While this option is flawed as a new WWTP for the entire region, it is discussed further as a possible satellite plant.
4.3 Distributed or Satellite Plants
Satellite plants provide an opportunity of redirecting inflow away from the Westside Regional WWTP and thereby extending the expect life of the plant. Areas identified for future growth offer the
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opportunity to locate a new satellite WWTP achieve this with minimal changes to the collection infrastructure and offers advantages in the collection system for the growth area. Under this scenario, satellite plants are assumed to be tertiary plants designed for near zero odour release and discharge of solids to the Westside Regional WWTP. Essentially, the plants would recover 80 to 90 percent of the influent as reclaimed water. The reclaimed water would be disposed either by a new outfall to Okanagan Lake or through reuse of reclaimed water (e.g. drip irrigation at nurseries or vineyards, or spray irrigation of golf courses and park space). Three possible configuration were considered – two for liquid treatment and one for solids treatment.
4.3.1 Peachland Future Growth
Peachland growth is expected to exceed the average annual growth driven primarily by two large proposed developments, each for over 2,000 units. Growth up to 15,000 persons would more than double the current population served. If this growth, or this growth plus the current Peachland population served, were accommodated at a new WWTP in Peachland, a reduction in flows of about 20 percent could be realized at Westside Regional WWTP.
4.3.2 IR 10 – Future Growth
Based on the Casa Loma Lift Station Report, Westbank FN IR 10 is projected for an additional 20,000 persons. Like the Peachland option, a new satellite plant would provide a reduction in flows of about 20 percent could be realized at Westside Regional WWTP.
4.3.3 Solids Sites
A final option, though more complicated, is to relocate all the solids processing from the existing site to another site within pumping distance (dewatering and truck loading). This option would allow land currently used for solids processing to be converted to liquid unit processes. Besides the land identified with West Kelowna in the previous sections. 5 Cost of Service Review
This section presents a high-level cost of service review to identify opportunities to reduce costs and improve service. Areas of focus include operations, asset management, and overhead. Overhead costs are discussed separately from operations and maintenance costs under the heading Section 5.3 Overhead.
5.1 Operations
Opportunities for service improvements and cost savings through changes to process and operations were identified in Section 3 and Section 4 and are summarized here:
1. The overall treatment capacity of the existing site could be increased by acquiring land from the adjacent nursery. 2. The capacity of the primary clarifiers could be increased through CEPT during periods of peak flow.
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3. The standard operating procedure (SOP) for adjusting the wasting rate based on effluent ammonia could be amended to be conducted on a more frequent basis through the winter (i.e. 2 -3 times per week rather that once a week as currently specified). The more frequent assessment can help capture changing conditions and allow for more time to respond. 4. The plant effluent total nitrogen limit has been exceeded during winter operation, and this should be the focus of process optimization (close process monitoring, SRT control to maximize nitrification, possible use of methanol for denitrification during cold temperature operation). 5. Upgrading the bioreactors to a Granular Sludge Process or a BioMag® System reduces, and potentially eliminates, the need for additional secondary clarifiers. Reducing the number of secondary clarifiers effectively increases the overall treatment capacity of the existing site. 6. The existing secondary clarifiers should still be used to the extent possible within the available space to minimize operating costs, supplemented by a small footprint process such as DAF or Actiflo® to handle peak hydraulic and solids loads. 7. Energy efficiency at the WWTP can also be improved by upgrading the existing blowers to turbo blowers, incorporation of solar power and LED lighting, heat recovery from the wastewater stream, and plant power audits to evaluate opportunities for energy savings.
In order to assess the existing operation and maintenance (O&M) costs for the Westside Regional WWTP, two other similar BNR type plants were compared; Penticton and Whistler. The plants are similar in liquid and biosolids treatment, are relatively new, and are similar in size. It is important to emphasize that each WWTP is unique and comparing cost directly can be misleading. For example, the RDCO funds UV lamp replacements through the O&M budget while the City of Penticton funds the replacement though a separate capital budget. A direct comparison can be further blurred when comparing the accounting practices of a regional district to that of a municipality. That being said, a high-level comparison of operating costs between WWTPs provides some indication as to whether or not the costs are at a reasonable level.
In comparing the costs, we have allocated accounting costs to a more level platform. We further broke the cost information down into three broad categories: labour, energy and general O&M. These were then generated on a per cubic meter of liquid treated. Energy is the total of electricity and natural gas, labour is self-explanatory, and general O&M is the sum of the remainder. Figure 5-1 illustrates the overall cost breakdown in the three categories at each plant, on a per cubic meter basis. Note that overhead costs are included within each of the three categories and are discussed in more detail in Section 5.3.
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Figure 5-1 – O&M Cost Summary for Westside Regional, Penticton, and Whistler WWTPs
As shown in Figure 5-1, all three plants had very similar operating and maintenance costs in 2014. Penticton had slightly lower general O&M costs, but some of the accounting costs codes for Penticton may include labour. Each plant is staffed during the day, 7 days a week, but with reduced staffing levels on weekends. On average, general O&M costs represent about 53%, energy 12% and labour 35%.
Not included in this cost data are costs associated with asset depreciation and replacement funding. Also, biosolids costs were limited to onsite solids processing O&M costs alone, since each plant has quite different biosolids treatment systems and disposal costs, which are accounted for under different cost centers. Each of the WWTPs dewater and truck biosolids to a receiving location, and these costs are included.
Long term costs can be expected to increase as flows and biosolids generated at the plant increase. Depending on long term technologies employed at the plant, for example anaerobic digestion, some energy recovery options and cost recovery may be possible, but this would be partially offset by increased labour and general O&M costs.
It is very important that a long term biosolids management plan be developed for the plant, as the cost uncertainty in this aspect of future O&M (and capital) costs is high. Typically, plant O&M costs for solids treatment (e.g., dewatering, composting, incineration digestion, land application, etc.) are 50% of a plant’s total O&M costs. Capital costs and locating such treatment facilities and ultimate disposal sites can be challenging and costly. In this regard, a regional solution may provide a better life cycle cost than one strictly dedicated for the Westside Regional WWTP.
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5.2 Asset Management
Assets are the means by which an organization delivers services to its customers. An asset’s functional failure can be considered to have occurred when an asset can no longer fulfill its prescribed function in service delivery. Asset failure can thus be a result of physical deterioration, or a result of change in demand exceeding the asset’s capacity. Therefore, asset management requires looking beyond the hydraulic and wastewater treatment assessment conducted in this report. Asset management requires further developing operational, maintenance, and inspection programs to better define the functional condition of the components of the Westside Regional WWTP, thereby allowing maintenance and replacement costs to be adequately budgeted and appropriate reserve balances targeted.
The analysis of treatment process (Section 3) and site life expectancy (Section 4) focused on the capacity of existing and alternative unit processes. From this analysis, we are able to comment on future reserve balance requirements and developer cost charges (DCCs) associated with increasing the capacity of the existing and/or future sites. However, our analysis did not review the adequacy of existing operational, maintenance, and inspection programs. It is recommended that the RDCO conduct a detailed review through a separate study of existing and additional operational, maintenance, and inspection programs. The outcomes from this review would assist the RDCO in planning for ongoing and major maintenance programs, and therefore would influence reserve balance targets. Such a review would also allow for a review of staffing requirements, and possibly salaries.
Table 3-4 in Section 3.15 provides a summary of the anticipated costs of increasing the capacity of the Westside Regional WWTP after the existing site is built-out using the technology of the existing unit processes. The capital cost to increase the treatment capacity from 22.4 MLD to 36.6 MLD (average day flow) is estimated to be at least $23.25 million (2015 dollars). These capital costs are largely attributed to growth in the region and as such can be offset set through DCCs, however, a more detailed cost estimate will be required to determine at what levels the DCC’s should be set and what DCC reserve balance should be targeted. The Westside Regional WWTP DCC reserve balance at the end of 2014 was $1,497,835. This current reserve balance is clearly inadequate in light of the $23.25 million (2015 dollars) required around the year 2045 that will largely be funded through DCC. Note that these costs are in addition to the costs associated with increasing the average day flow treatment capacity from 16.8 MLD to 22.4 MLD.
The Westside Regional WWTP reserves must be able to contribute to the capital costs but also, likely more importantly, to fund the ongoing rehabilitation and maintenance of the various components of the WWTP. The Westside Regional WWTP reserve balance at the end of 2014 was $299,537. To comment on an appropriate reserve balance, one must look at the Westside Regional WWTP capital investment to-date. Table 5-1 extracted from the Neilson-Welch 2010 Westside Regional Wastewater Treatment Plant Final Report illustrates that much of the funding for capital investments for plant expansion has been through infrastructure grants and DCC reserves. The funding for rehabilitation and replacement of these capital investments however will need to be funded through a combination of user fees, parcel taxes, and reserve balances. Long-term planning and budgeting for rehabilitation and replacement of the assets of the Westside Regional WWTP will therefore allow appropriate reserve balances to be targeted.
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Table 5-1: Westside Regional WWTP Funding (Neilson-Welch, 2010; RDCO, 2015) Value Capital Investment Years Funding Sources (Nominal Dollars) Original construction 1987-1989 $2.67 million $1.68 million – Infrastructure Grants $0.14 million – Westbank Irrigation District $0.85 million - Borrowing Phase 1 Expansion 1994-1996 $11.8 million $5.36 million – Infrastructure Grants $6.44 million – DCC Reserves Capital Improvements 1999 $1.73 million $0.26 million – User Fees $0.52 million – Capital Reserves $0.94 million – DCC Reserves Phase 2 Expansion 2004-2007 $13.03 million $1.7 million – User Fees $11.31 million – DCC Reserves Minor amount – Infrastructure Grants Phase 3 Expansion 2011-2012 $13.3 million $5.63 million – DCC Reserves $4.90 million – Build Canada Grant Remainder – Capital Reserves Total
5.3 Overhead
In 2011, the RDCO adopted an Administration Overhead Policy, Section 7.6 of the RDCO’s Policy and Procedures Manual. In 2013, a report to the regional board entitled ‘Program/Service Reviews & Administration Overhead Update’ reinforced that the overhead cost allocation methodology “was a well-developed and thorough policy, is functioning well and can be adjusted annually to reflect changing conditions”. The 2013 report identified that issues with the methodology can be addressed through improved relationships between the RDCO and staff members of partner municipalities and community associations as well as though ‘Value for Money’ audits of the departments that are cost recovered through administration overhead allocations.
Table 5-2 outlines the overhead costs budgeted to be charged to the Westside Regional WWTP in 2015 total $695,109. This represents 21.1% of the $3,291,778 budgeted expenses from which overhead costs can be recovered – see Table 5-3.
Table 5-2: Overhead Costs Charged to the Westside Regional WWTP Overhead 2015 Budget % of Total ($3,291,778) Administration $406,421 12.3% Engineering Administration $110,591 3.3% Payroll $178,097 5.4% Total Overhead $695,109 21.1%
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Table 5-3: 2015 Budgeted Expenses for the Westside Regional WWTP Expense 2015 Budget Administration Overhead $406,421 Engineering Administration Overhead $110,591 Operations (Including Payroll Overhead) $2,764,766 Sub-total Expenses $3,281,778 Debt Payments – Plant $395,603 UBC Biosolids Digestions Research $25,000 Transfer to Capital $461,445 Total Expenses $4,163,826
Overhead costs are challenging to compare to others organizations, particularly municipalities as it is common for municipalities to include the costs of operating the WWTP within the overall costs of operating the sewer utility. In other words, municipalities account for overhead costs such as general administration, engineering, and payroll for the sewer utility as a whole and not individually for assets such as WWTPs. Fortunately, the City of Penticton provided us with a breakdown of their 2014 Advanced Wastewater Treatment Plant expenditures. The City of Penticton Advanced WWTP and the RDCO’s Westside Regional WWTP overhead costs are summarized in Table 5-4.
It is important to emphasize the notes below the table; the RDCO’s total WWTP operating costs include the cost for biosolids management and removal while the City of Penticton’s total WWTP exclude the cost for composting. Therefore, even when overhead and operating costs are summarized for a WWTP it is not reasonable to directly compare costs between two WWTPs.
Table 5-4: WWTP Overhead Costs RDCO Westside City of Penticton Overhead Regional WWTP Advanced WWTP General Administration - $382,800 Administration $406,421 - Engineering Administration $110,591 - Payroll $178,097 - Total Overhead $695,109 $382,800
Total WWTP Operations $3,281,7781 $1,956,7182
Overhead % of Operations 21.2% 19.6% 1. Includes $769,805 for biosolids management and removal 2. Excludes $310,922 for composting
It is recommended that the RDCO undertake a ‘Value for Money’ audit as previously recommended in a report to the regional board. Such an audit would allow for a formal documentation of the overhead services provided by the RDCO to the Westside Regional WWTP.
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6 Recommendations
Opportunities for expanding site capacity that should be evaluated in a future feasibility study include the following:
conversion of biological process to IFAS or other low-footprint BNR technology to treat the projected 2065 projected wastewater flows; replacement of at least some of the secondary clarifiers with an alternate solids separation technology such as DAF to treat the projected 2065 projected wastewater flows; develop a plan for beneficial use of solid residuals produced at the WWTP; Study to review DCCs and reserves to ensure these are adequate going forward; use of CEPT during periods of high flow and loads to allow 7 primary clarifiers to treat the projected 2065 projected wastewater flows; use of 7 primary clarifiers without chemical addition to treat the projected 2065 projected wastewater flows, with the resulting increased loading in the primary clarifier overflow being accommodated by the biological and secondary solids separation processes; use of solids digestion/resource recovery, possibly at an alternative site; and, conduct a ‘Value for Money’ audit to confirm the overhead costs charged to the Westside Regional WWTP.
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Appendix A: Potential Future Site Figures
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Dr y M e d ridg a c h R dle T lis d ith Rd W L a a Asqu w S S r e n
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R d B M d n n c utt R d
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t n l P n k e l O
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n W r o C u n i RDCO d u l l T R l
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r in C Ma St 9 a e 7 rr Rd al m tt l R d i d r Scenario One & Two E d W R D R ie her rd n uc a o ch w B rit o
West Kelowna r P 450+ mm diameter
Gorman Bros. Lumber Ltd. B N ^_ d trunk lines R Barona Beach Resort ly ^_ t a ll e Design Constraints: G West Kelowna Yacht Club
Existing WWTP > 100 m or 200 m from Residential Areas ^_ <= 450 m Elevation H ig The Cove Lakeside Resort hw < 1km from Trunk Sewer a ^_ y 9 7C < 2km from Highway 97 Tre d ^_ pan < 3km from Okanagan Lake Shoreline ie R r R dT n > 0.04 km^2 area rep o
a n l nie r n H C i 7 P R ig y 9 a k h hw 0 0.5 1 2 r d w ig c a H
a y
a t 97C 97C Kilometers
S
M Cousins Rd d ught R Central Okanagan 97 Dro Legend d hway Dryd R d Hig en Rd e R c n n to re s Roads la Hu Peachland C Lakes Peachland Satellite Plant Peachland Elementary ^_ Outfall 4th Ave ^_ Intake ^_ San Clemente Ave Beach Ave ± ^_ Points of Interest Peachland Yacht Club Sewer Trunk (>= 450 mm Lakeshor e Rd Diameter) ^_ sh Rd Lake or e Peachland Municipal Office WWTP Areas (>100m C Kelowna U/ from Residential Areas) ^_ U/C Central Okanagan WWTP Areas (>200m from Residential Areas) - None
^_ 280 Central Okanagan E
l
k Butt Rd B r utt Rd i r r d D Two Eagles Golf Course g D s 7 e ie 9 e t t u y D a a r Mission Hill Estate Winery d o t d L w r s C
y h d R d e R r ig E ^_ r w R R c H D e k d e a l n D r
e g H r o E R
d t t d w e B L r i G a t g C ^_ n l r e e R a n t R i
n i s a a a e r r i t i r V y V
t d n a g g a s e G a g o n a n M C a i l i l Taneda Rd l P R e n r l a
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t Rd O a Sonom a a Wind w 7 a Pines Dr l h 9 d g P o G Solar Rd Ap i n Treatment Plant ollo Rd H e S le a n d c a C o Delray Rd R e Drought Rd d d Locations in the R R d 97 97 d rs Westbank Centre R te t s e S ro P o Pl D RDCO in7 rrer e d Ma9 jo Te r Glenrosa R a Rd C l Lowe Witt a rail M Highway 97 ^_ Dobbin Rd M rra rado T ll va a R Al r d C Scenario Three & Four Rd Pl r rt avera t e W Tal d Heb R Johnson-Bentley Memorial Aquatic Centre e rie Old Boucherie Rd t e t h o uc l 600+ mm diameter n Bo P d
G R Ingram Rd R t l e ^_ r e d o
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R N r a
e
n 1 n n d y i R w ie o cher P Design Constraints: n o Bou
r d Barona Beach Resort D d
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y D s r r > 100 m or 200 m from Residential Areas d D gu e
n d
n i An ^_ ar <= 450 m Elevation h h C c c it t r i P < 1km from Trunk Sewer d
H R < 2km from Highway 97 g Jennens Rd n i < 3km from Okanagan Lake Shoreline d r a > 0.04 km^2 area H 0 200 400 800 G Meters e l l a t l y
R
d R O Legend S A D
5 Roads West Kelowna Yacht Club Lakes ^_ Outfall N
d O k a n a g a n L a k e
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t
a l
l ^_ e Points of Interest G ^_ The Cove Lakeside Resort Sewer Trunk (>= 600 mm ^_ Diameter) rt WWTP Areas (>100m e C org from Residential Areas) Ge th Rd Whitwor WWTP Areas (>200m from Residential Areas) - ± None 281
Opus DaytonKnight Consultants Ltd 210-889 Harbourside Drive North Vancouver BC V7P 3S1 Canada
t: +1 604 990 4800 f: +1 604 990 4805 w: www.opusdaytonknight.com
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Regional Board
Report
TO: Regional Board
FROM: Brian Reardon Chief Administrative Officer
DATE: October 6, 2016
SUBJECT: Request to Travel – Director Hanson
Voting Entitlement: All Directors – Unweighted Corporate Vote, Simple Majority – 208.1
Purpose: To seek Board direction on the request from Director Hanson to travel to Kamloops to attend a SILGA educational session.
Executive Summary: On September 29th, 2016 the Southern Interior Local Government Association (SILGA) sent an email to its membership announcing their fall educational sessions in Kamloops and West Kelowna on October 26th & 27th respectively. The programs are the same in both locations.
Director Hanson has indicated that she wants to attend the Kamloops session. Travel outside of Regional District of Central Okanagan (RDCO) boundaries requires prior approval of the Board in accordance with Board Remuneration and Expense Policy No. 7.15.
A copy of the email string dealing with this matter is attached to this report for your information. The Board has the option to either approve Director Hanson’s request and pay travel expenses to and from Kamloops or deny her request and suggest she attend the session being held in West Kelowna.
Justification to travel to Kamloops when the same educational session is being offered in West Kelowna has not been offered. RECOMMENDATION:
THAT the Board suggest Director Hanson attend the SILGA educational sessions being offered in West Kelowna.
Respectfully Submitted:
Brian Reardon
283 Brian Reardon
From: Gail Given Sent: Thursday, October 06, 2016 3:05 PM To: Patty Hanson Cc: Brian Reardon; Mary Jane Drouin Subject: FW: SILGA educational sessions
Director Hanson,
I wish to advise you that travel outside of our Regional District requires a resolution of the Board. I will add your reques t to the Board Meeting agenda for October 13th. Sincerely,
Gail Given Board Chair | Regional District of Central Okanagan 250-575-7079 | [email protected]
-----Original Message----- From: Mary Jane Drouin Sent: Monday, October 03, 2016 8:42 AM To: Brian Reardon; Gail Given Subject: FW: SILGA educational sessions
As you are aware, the invitation was sent to the Board. Director Hanson has indicated she wishes to attend the Kamloops session. I had anticipated if Board members wished to attend they would attend the West Kelowna session to keep expenses down. A s per Board policy, she would require Board approval to attend this session in Kamloops as it is out of the jurisdiction.
For your response to the Director
Mary Jane Drouin Manager – Corporate Services Regional District of Central Okanagan 250-469-6224
-----Original Message----- From: Patty Hanson Sent: Friday, September 30, 2016 7:34 PM To: Mary Jane Drouin Subject: Re: SILGA educational sessions
I want to go to the Kamloops session
Patty Hanson COE Director
> On Sep 29, 2016, at 12:17 PM, Mary Jane Drouin < [email protected] > wrote:
1 284 > > Please let me know if you wish to attend the following sessions and I will register attendees. > > Mary Jane > > > -----Original Message----- > From: southern interior local government [ mailto:[email protected] ] > Sent: Thursday, September 29, 2016 8:48 AM > To: City Of Armstrong; City Of Enderby; City Of Kamloops; City Of Kelowna; City Of Merritt; City of Penticton; City Of Revelstoke; City Of Salmon Arm; City Of Vernon; CSRD; District Of Barriere; District Of Clearwater; District Of Coldstream; District of Lake Country ...; District Of Lillooet; District Of Logan Lake; Polly Palmer; District of Sicamous; District of Summerland; District Of West Kelowna; NCLGA; Mary Jane Drouin; RDOS; Sharon Thompson; SLRD; Sun Peaks Resort Municipality; TNRD; Tom Kadla; Town Of Oliver; Town Of Osoyoos; Town Of Princeton; Township Of Spallumcheen; Village Of Ashcroft; Village Of Cache Creek; Village Of Chase; Village Of Clinton; Village Of Lytton > Subject: SILGA educational sessions > > Please forward to all elected officials as well as senior staff. > > Good morning everyone, > > SILGA is pleased to announce their fall educational sessions will be running October 26th and 27th in Kamloops and West Kelowna respectively. There will be two topics for the sessions - the Firefighters Playbook and Aboriginal Awareness and Relationship Building. > > The presenters for the Firefighters Playbook will be Rick Owens, Fire Service Advisor, Kamloops, Bill Wacey, NORD Fire Chief, Stephen Hidasi, NORD Training Officer and Gord Anderson, BC Fire Commissioner. > They will be able to give participants an excellent understanding of why changes were made to the playbook, how the playbook is implemented and the education and training requirements for the new playbook, including any financial implications. > > The Aboriginal Awareness and Relationship Building session will be hosted by Robert Laboucane from Aboriginal Awareness Canada. He is an experienced, award winning facilitator who is passionate about providing the education to build relationships between the Aboriginal and non-Aboriginal communities which are based on mutual respect, trust, friendship and understanding. > > The sessions will run all day with lunch and snacks provided. Cost is only $25. Both elected officials and staff are welcome to attend. > > You must preregister by contacting the SILGA office at [email protected] or by phoning 250-851-6653. Please specify which session, Kamloops or Kelowna, you would like to attend. > > A pamphlet is attached for your information. > > We look forward to seeing you. > > Thanks, Alison > > > -- > SILGA > PO Box 27017 Cityview PO
2 285 > Kamloops, BC V2E 0B2 > 250-851-6653 > www.silga.ca >
3 286 Regional Board
Report
TO: Regional Board
FROM: Brian Reardon Chief Administrative Officer
DATE: October 6, 2016
SUBJECT: Committee Appointment – Westside Wastewater Treatment Service
Voting Entitlement: All Directors – Unweighted Corporate Vote, Simple Majority – 208.1
Purpose: To appoint Tom Konek as the Westbank First Nation (WFN) representative on the Westside Wastewater Treatment Service Stakeholder Select Committee.
Executive Summary: Our office has been advised that following the recent WFN elections, Councillor Tom Konek has been appointed as the WFN representative on the Regional District of Central Okanagan (RDCO) Board. The WFN appointee to the Board is also appointed to the Westside Wastewater Treatment Service Stakeholder Select Committee as WFN is a key partner in this sub-regional service.
Accordingly, the Board needs to adopt a resolution making this committee appointment to replace Christopher Derickson.
RECOMMENDATION:
THAT the Board approve the appointment of Tom Konek to the Westside Wastewater Treatment Service Stakeholder Select Committee.
Respectfully Submitted:
Brian Reardon
287