HomeMy WebLinkAboutCAO-18-013 - Second Quarter Audit Status ReportKiTCUENER
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REPORT NO.:
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Audit Committee
www.kitchenerca
June 11, 2018
Corina Tasker, Internal Auditor, (519)741-2200, ext. 7361
Corina Tasker, Internal Auditor, (519)741-2200, ext. 7361
All
April 6, 2018
CAO -18-013
2nd Quarter Audit Status Report
No recommendation required. The following information is being provided as an update
and assurance on internal audit matters, in accordance with the Audit Committee Terms
of Reference.
BACKGROUND:
The following report provides a summary of the Internal Audit activities completed during the
period of March to June 2018. The chart below shows the audits contained in this report.
Division / Topic
Scope
Use of Consultants / Professional
Services
Value for money
Winter Maintenance
Comprehensive audit
The following items are currently in progress and will be brought forward at a future audit
committee meeting:
• Hiring Transparency — follow-up audit
*** This information is available in accessible formats upon request. ***
Please call 519-741-2345 or TTY 1-866-969-9994 for assistance.
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REPORT:
1. Use of Consultants / Professional Services, Value for money
Status: Complete, April 6, 2018
Background:
During the third quarter 2016 audit committee meeting Council had requested a review of the
value add provided by engineering consultant services. There was a perception that staff were
having to re -do work that consultants were hired to do and a question as to why the city hires
the number of consultants that it does.
Audit Objectives:
1. To assess the value provided by consultants / professional services; and
2. To assess the reasons why consultant / professional services are hired rather than
using internal staff.
Scope:
The original 2016 audit request from Council specified a review of the use of "consultants" in
the engineering division. Since that time amendments to the Purchasing By-law have been
made in late 2017 to further break down these services into two types of services which are
defined as follows:
1) Consulting services — provision of expertise or strategic advice that is presented for
consideration and decision making, and are generally acquired to obtain information, advice,
training or direct assistance.
2) Professional services — furnishing labour, time or effort, which may involve the delivery or
supply of products incidental to the provision of the services.
The majority of the services procured for the engineering division are professional services.
However, there is no way to differentiate the two types of services in the historical financial
system data as they are all coded as consulting services. Therefore, this review included
looking at both types of services across the corporation, with a primary focus on services
procured for the engineering division.
Methodology:
This audit included the following components:
• Review of a sample of 32 professional services and consulting engagements
(engineering and other divisions), spanning 2015 — 2017 and representing 8% of the
total number of contracts in that period and 19% of the total value, to determine:
o Staff opinion of vendor performance (i.e. did staff have to perform or re -do any
tasks that the city paid the vendor to do? Did the vendor provide any additional
value outside of the scope of work?)
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o Reason for using a vendor instead of internal staff (i.e. lack of capacity,
specialized skills, or other reasons)
• Interviews with supply services staff, engineering management and the project
managers (from multiple divisions) for each sample
• Documentation of old and new procurement processes
The random sample was selected from the total population of consulting and professional
services contracts during the 3 year sample period. The split between contract categories was
as follows:
Category
% of sample
Examples of Project Type
Engineering
60%
Road reconstruction, storm water
$125,000+
Expression of interest open to all bidders; interviews required; Council
approval required
utility projects, sanitary sewer and
approved by director of supply
pumping station projects, etc.
Other
34%
Master plans, placemaking studies,
$50,000 - $100,000
Same as above
system implementations, etc.
Environmental
6%
Soil testing
Purchasing By-law:
The previous purchasing by-law (which applied to the sample set) grouped both consultant and
professional services together under the following approval clip levels:
Dollar Amount
Selection Process
$0-$25,000
No competitive process required
$25,000 - $125,000
Invitation to 3-6 firms to submit an expression of interest; Council
approval required
$125,000+
Expression of interest open to all bidders; interviews required; Council
approval required
Under the new purchasing by-law, which came into effect in late 2017, there is a distinction
between consultant and professional services:
Dollar Amount
Consultants
Professional Services
$0-$25,000
No competitive process required
No competitive process required
$25,000 - $50,000
Invitation to minimum of 3 firms;
Three quotes required
approved by director of supply
services
$50,000 - $100,000
Same as above
Supply services invitation to
minimum 3 firms; approved by
director of supply services
$100,000 - $750,000
Open competition; optional to
Open competition; approved by
interview firms; approved by
director of supply services
Council
$750,000+
Same as above
Open competition; approved by
Council
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Findings:
Reasons for Outsourcing
The majority of the reasons provided by city project managers and engineering management
as to why a consultant or professional services firm was hired were due to a lack of in-house
skill or a combination of lack of in-house skill and lack of capacity. The specific breakdown was
as follows:
Reason for Outsourcing
Number
Percent of Sample
Lack of skill set
12
38%
Lack of capacity
4
12%
Lack of skill set AND lack of capacity
16
50%
Total
32
100%
In several cases staff mentioned that it was also advantageous to have an independent 3rd
party perform the work or provide advice, particularly when the project was under additional
public scrutiny.
The various projects in the sample required a number of different skill sets. Some of these
skills such as urban planning, landscape architecture, civil engineering, project management,
etc. are skills the city does possess in-house; however staff with these skills might already
have been committed to other projects or not available. Hiring consultants / professional
services for this work allows the work to go ahead and be completed in a timely manner.
There are other skills which are very specialized or require specialized expensive equipment,
and where there is not enough steady work at the city to justify hiring someone internally to
perform the work. For example, geotechnical work, hydrogeologists, biologists (with expertise
in birds, aquatic species, etc.), use of proprietary software, etc.
The review team did not find any evidence that particular types of consultants / professional
services are being retained in great enough quantities to justify hiring internal staff. Interviews
with engineering management also confirmed that the sample taken is representative of the
work that they normally do, and requires many different specialists from different disciplines
which simply could not be obtained in a single staff hire. Therefore it makes sense to continue
to outsource for these specialities rather than try to staff up internally. This is a common
approach taken by other municipalities.
City Project Manager Role
(This section refers to engineering projects.)
The available staffing, physical office space, and annual workload divided into simple or
complex projects is what is used to evaluate the needs of each engineering project and the
use of internal staff or external resources. A city project manager might lead a project internally
in its entirety or oversee the work of a professional services team which are delivering a
project. In some work areas, the split is such that simpler and more straightforward projects
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are delivered in-house while more complex and specialized projects are completed by retained
professional services.
When a professional services firm is retained for a project, that firm will usually provide both
the design and the contract administration/inspection services during construction. Only in very
few cases will a firm provide a project manager for the design services and an inspector for
construction services while a city project manager takes over the contract administration work.
In the instances of complex, specialized projects, a city project manager would still need to be
involved in order to ensure that the retained firm completes the work, abides by city processes,
obtains input from internal and external stakeholders, coordinates work with other internal
groups, approve invoices, review drawings and reports, etc. Utilizing both a city project
manager and professional services for the same project is perhaps why there is a perception
that there is duplication of work.
In engineering and on road reconstruction projects, a city project manager can manage up to 4
projects completed by professional services firms. This number varies based on the
complexity of the project. Using professional services increases the number of projects that
can be completed at once.
One advantage to using internal staff is that it might lead to greater care for such things as as -
built documentation which is used by other city staff. However, it is not possible or desired to
provide all project management internally as there is not enough staff capacity, physical space,
or management to accomplish this. Additionally, a mix of both internal and external resources
are used in order to mitigate fluctuations in demand in the development industry.
Internal vs. External Specialization
It was mentioned that the primary project manager role for a number of projects could have
been done in-house if there was capacity (i.e. our staff have the skill set). However, these
projects would still need to retain specialized skills in the form of numerous professional
services such as geotechnical, material testing, hydrogeological, fluvial geomorphological,
archaeological, electrical engineering, mechanical engineering, structural engineering, and a
variety of biologists with expertise in a wide range of fields such as aquatic, botany, birds, etc.
Many of the professional services that are retained are comprised of teams of specialists from
different fields and are managed by the professional firm's project manager. To hire all these
disciplines internally would not likely work as there is not steady work for all areas, and in other
cases some disciplines require expensive equipment. The city benefits from retaining
professional firms with a wide range of expertise and experience particularly on complex
projects.
Each project is unique and depending on the scope, project schedule, degree of coordination
required, etc. it may or may not be appropriate for city staff to be the primary project manager.
The city will continue to evaluate the needs of each project and use internal project managers
wherever it makes sense, assuming there is capacity.
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Rework
The city project managers were asked whether they needed to re -do any of the work that they
had hired the consultant to perform. 5 of the 32 projects in the sample (16%) did require some
form of rework. The rework consisted of fixing calculation or estimation errors, and re -writing
reports to be in a format suitable for Council. The city staff also provided guidance on
technical matters where the consultant was not familiar with working with the city. Rework was
not required for the consultants that had worked with the city on multiple occasions.
Value Add
Project managers were also asked what additional value they felt the consultant provided,
above and beyond what they were paid for and / or in comparison to city staff. 73% of the
vendors in the sample were felt to have provided value add in some manner or another. It was
noted in several instances that the fact that several of the firms had previously worked in the
area was helpful with respect to obtaining background information, working with nearby
residents, etc. Several firms have access to proprietary software, broad expertise and staff that
have worked on a variety of projects which provides additional depth to the projects.
In one particular instance, the city retained the same consultant as the Region of Waterloo on
a project in close proximity and this provided a value add as a result of enhanced
communication and coordination between the two projects. On another project, the retained
firm was able to bring a new perspective to a long standing project and find innovative ways to
analyze a large set of data. An onsite decision to minimize the impact to a street tree on
another project required a redesign and the firm was able to complete the redesign in a single
day due to the extensive capacity of their workforce.
A number of projects benefited from global expertise in order to solve a problem. It was also
noted that a number of firms had extensive experience in obtaining approvals and permits from
a wide range of agencies which was helpful in obtaining more timely approvals for projects.
Conclusion
It can be concluded from this audit that consultants and professional services are a valued part
of the city's service delivery method. They are used primarily to draw on skills and expertise
that are not found in-house. In many cases there is not enough of certain types of work or it is
not a year round function to justify hiring internal staff. Consultants and professional services
are also used to supplement the city's own capacity and ensure that projects get completed in
a timely manner. The duplication of effort is seen to be minimal and staff make efforts to use
the most efficient combination of outsourced and in-house resources to get the job done.
There are no recommendations from this review.
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2. Winter Maintenance — Comprehensive Audit
Completed: May 4, 2018
Objectives:
The objective of this review was to examine how winter maintenance is performed, both in
terms of the processes themselves, as well as the supporting structure, resourcing and
equipment, and determine if there are improvements which could be made to make the most of
strengths and mitigate risks. Specific focus was placed on what needs to be done to achieve
the new maintenance standards which became law in May 2018.
Methodology:
Similar to internal service reviews conducted in other areas of the municipality, this review
incorporated the following elements:
• Literature review of key internal and external documents
• Staff and management consultation (including 37 staff interviews / surveys, 13
management surveys, and multiple workshops)
• Internal and external stakeholder consultation (including 8 external stakeholder groups, 15
internal stakeholder groups, and interviews with 4 members of Council)
• Risk assessment
• Municipal benchmarking with 9 other cities, most of which have similar lane kilometres
and/or climate, including Barrie, Burlington, Cambridge, Guelph, London, Markham,
Oakville, Vaughan and Waterloo
• Environmental scan including review of new maintenance standards, expected growth,
climate change impacts and other impacts affecting service delivery
• Analysis of overall winter maintenance operations including services provided, non -winter
tasks, staffing, training, equipment and financial information
• Analysis of specific winter maintenance activities including use of wing persons, cul-de-
sacs, sidewalks, bike lanes, trails, windrows, regional services, LRT, and salt management
Note that this review did not include public consultation as this is an internal audit. However,
comments from various citizens and advocacy groups that have been brought forward through
other means, such as Council meetings, have been considered in this review.
Findings and Recommendations:
Overview
The review indicated that generally the city meets or exceeds provincial maintenance
standards, provides good winter maintenance services and provides excellent internal
communication around snow events. Areas for improvement focus on improved accessibility
in relation to sidewalks and windrows, and improved communication with the public.
Improvement was also required to make internal processes such as resourcing, payroll, and
budgeting more streamlined.
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A total of 75 recommendations were developed in this review and were shared with staff. The
recommendations concentrate on modifying service delivery and supporting structures in order
to ensure a continued safe transportation system while meeting new provincial maintenance
standards.
A summary of key recommendations which are of interest to Council and the public are
included in this report.
Maintenance Standards
Winter maintenance work is governed and directed by several regulations, policies, and
procedures, the primary one being the Ontario Maintenance Standards. Ontario Reg 239/02
contains the maintenance standards for road maintenance, including winter maintenance
activities. The standards specify road classifications based on speed limit and vehicular traffic
which then dictate the allowable depth of snow accumulation and timeframes in which the
municipality must address road conditions.
Previous winter maintenance standards only focused on the roads. In May 2018 the new
regulation was released. The key changes to the regulation included winter maintenance and
monitoring standards for sidewalks, trails and bike lanes, whereas the previous standard fell
silent on these topics.
This review examined the changes to the standards to determine what the impact would be to
current operations. These impacts are discussed further in the sections below.
Growth
The demand for winter maintenance service is influenced by both the weather and by the
kilometres of roads, sidewalks and trails that are maintained by the city.
Residents call the corporate contact centre or by-law to complain about a variety of winter
maintenance topics including their road not being plowed, windrows, neighbour's sidewalks not
being cleared and accessibility issues. Data from 2013 — 2017 show that the city receives on
average 7,000 calls about winter maintenance topics per season. From these, there are about
750 service requests (i.e. streets that were thought to have been missed or not plowed to the
satisfaction of the caller, or city maintained sidewalks that are reported to be icy), 25 requests
for assistance in clearing snow from driveways or sidewalks, and 1300 — 2900 sidewalk
investigations (property owners not clearing their sidewalks appropriately). These calls
occupy the time of one full time by-law officer who investigates each sidewalk complaint, as
well as operations supervisor and staff time to respond to all other calls.
Data was obtained from GIS which indicates the existing (active) and planned inventory of
roads, trails and sidewalks based on development plans. This data can be used to help
predict future resourcing needs.
2-8
Roads:
Total active km
Total active (km)
% City
Total Planned
% Increase in
Maintained by
maintained
New (km) — in
Road km
City
next 2 years
1,899
1,899
100%
79
4%
The inventory of roads winter maintained by the city will grow by approximately 4% in the next
1-2 years. It is estimated that this growth would require 1 additional salt route and 1 additional
plow route.
Sidewalks:
Total active km
Total active (km)
% City
Total Planned
% Increase in
Maintained by
maintained
New (km) — in
Sidewalks km
City
next 2 years
1,202
216
18%
79
7%
The 7% expected growth of sidewalks (which includes sidewalks, walkways, crosswalks, and
crossing guard locations) in the next 1-2 years assumes that sidewalks will be built on both
sides of any new roads. This does not account for any new sidewalks added to existing roads
during reconstruction or any growth in walkways, crosswalks, or crossing guard locations.
The current sidewalk infill program (i.e. installation of sidewalks in locations where sidewalks
currently do not exist) sees an average of 0.5 to 2 km of new sidewalk per year.
The City of Kitchener manages sidewalk maintenance in winter through a combination of
maintenance by city staff and residents. There are currently 1,202 km of sidewalks and
walkways in the city, 216 km or 18% of which are maintained by city staff, with the remainder
being maintained by property owners. The city maintains all back -lotted properties (i.e.
sidewalks that run behind an owner's property), sidewalks adjacent to city owned properties,
and all downtown sidewalks. The downtown sidewalk maintenance is funded through a special
taxation to downtown properties.
Trails:
Total active km
Total active (km)
% City
Total Planned
% Increase in
Maintained by
maintained
New (km) — in
Trails km
City
next 2 years
216
40
19%
176
81%
The inventory of trails will increase by 81% in the next 1-2 years. However, the city only
currently winter maintains 19% of the inventory, mostly on city owned paved multi -use path
boulevard trails. The new maintenance standard may require the city to provide winter
maintenance of multi -use trails depending on whether they are considered sidewalks or not.
For the purposes of this analysis it is assumed that all sidewalks and trails that are maintained
by the city are serviced by the same equipment which includes 14 sidewalk plow routes. The
average sidewalk length cleared by the city within one route is 14 km. An additional 4 step
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routes for hand shoveling and salting stairways / steps and 2 facility hand salting routes to
clear and salt walkways at city facilities are used.
If one assumes the same ratio of city maintained sidewalks and trails in the future (18% and
19% respectively), then the growth will be 47.7 km of new city maintained sidewalk and trails.
If one also assumes the same type of equipment and level of service being provided, then at a
minimum 4 additional sidewalk plow routes will likely be required. More resources may be
required depending on the width of the trails, other design features such as curb -faced
sidewalks or bike lanes, and type of equipment used.
However, the new maintenance standards now require municipalities to have a program to
maintain snow to less than 8cm and treat ice within 48 hours on all sidewalks. This will mean
that a different service delivery model is required in order to be in compliance with this
regulation. More resources could also be required depending on the direction taken for the
sidewalk program. This is discussed further below.
If the city were to clear all sidewalks then the required number of sidewalk plow routes would
increase by 27 routes (as estimated by staff for report INS -16-087 Winter Sidewalk
Maintenance), from 14 to 41 routes.
Recommendations:
The winter maintenance program should regularly (annually or bi-annually) assess
future resourcing needs based on expected growth and proactively plan for and request
new resources.
Climate Change
On average the city experiences between 4-6 snow events per season. The growth projections
above assume similar weather patterns as the past winter season (2017/2018). Based on the
Localized Climate Projections for Waterloo Region (Interdisciplinary Center on Climate Change
& University of Waterloo, December 2015), a number of changes are predicted for our region.
Of these the ones which may have an impact on our ability to deliver and maintain our winter
maintenance services include:
• Increases in monthly temperatures with the greatest changes seen in the winter and into
early summer
• Currently around 22 days per year have extremely cold temperatures (daily minimum
lower than -15 C). It is predicted that there will be a reduction of these and by 2020s, it
will likely be less than half of that number. Both of these have an implication with
respect to outdoor winter recreation.
• The current 150 day period of sub -zero temperatures will be reduced by an average of
approximately 2 weeks over the next 30 years
• It is expected that the region will see an increase in number of freeze -thaw cycles
(number of days with minimum temperatures below OC and maximum temperature
2-10
above OC so that the surface water will transition through both frozen and liquid states
over the course of the day). These represent operational challenges for staff.
• Climate change projections also predict that annual precipitation will increase with the
greatest increases in winter, spring and summer. Increases in total annual snowfall
amounts are anticipated in the 2020s but with warming winter temperatures there will be
less of this precipitation in the form of snow in the 2050s and 2080s.
The report predicts an increase in freezing rain events by as much as 40%.
During the benchmarking with other municipalities, none of the municipalities indicated that
they were doing anything particular when it came to climate change but several indicated that
they were monitoring weather. A few noted that they had observed an increase in freezing rain
events and as such they had either made adjustments on their brine applications, expanded
their Road Weather Information System or how they staff for providing services on weekends.
Recommendations:
• Continue to monitor the effects of climate change and factor those into the overall
resourcing and equipment requirements and strategic planning for winter maintenance.
Data Management and Analysis
Throughout the course of this review it would have been helpful to have certain pieces of
information to determine the efficiency and effectiveness of service or confirm service levels.
A great deal of data is being collected such as labour hours and dollars, equipment hours and
dollars, assigned to specific types of work such as roads, sidewalks, etc. The GPS units in city
vehicles also collect information about where the vehicles have been. However, the review
team found it difficult to retrieve and analyze the data in many cases. There was lack of
consistency in data in some cases, such as GPS data not aligning with work order data.
Although weather data is monitored continually throughout the winter, the method by which
staff record specific operational responses to the weather is not consistent, making it difficult to
make comparisons in data.
As an example, the review team attempted to analyze the wing person pilot to determine if it
was more efficient and cost effective to remove the wing person position (refer to section
below for more details). There was an attempt made to pull GPS data for these routes to
compare the time to complete the route with or without a wing person. However, this data was
not available.
In general, other stakeholders have also commented about their frustration and lack of
confidence in using data that has been collected. Given that a lot of effort is put forth to collect
and enter the data, it would be beneficial if the data could actually be used to make business
decisions; otherwise it is a wasted effort. It should be noted that some of the data is used quite
successfully in defending the corporation through claims. Data collection for other specific
purposes should be prioritized based on what risk the data helps to mitigate through analysis.
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Several anomalies in the winter maintenance expenses were observed when reviewing the
financial data, and were discussed with financial planning staff to determine the root cause.
Actual expenses do not necessarily correspond to the descriptions of the winter maintenance
account codes as entries are being coded incorrectly by staff. The two operations divisions do
not have dedicated front line analytical support to monitor charges hitting their accounts or
providing variance analysis. While financial planning staff do provide this service at a high
level, the day to day monitoring is not happening which means that there is lack of oversight to
ensure financial data is correct. There is the risk that regional expenses are not being fully
recovered if not coded to the regional accounts properly, and there is a risk that operational
and budgeting decisions are being made based on incorrect data.
Recommendations:
For any service or process improvement which is implemented, staff should specifically
track data related to costs and hours prior to and after the change in order to evaluate if
the change had the intended effect.
• Re -allocate budget and headcount to create an analyst position to support both
operations divisions. Duties would involve daily monitoring of cost centres, variance
analysis, budget analysis, reconciliation of the regional contract and other analysis as
required for both summer and winter functions.
Staffing
Workforce planning was identified by both staff and management as a cumbersome and
complex process which had room for improvement. In general, the winter maintenance
positions are filled each year through a sign-up process which means staff and reporting
relationships may change from year to year, and between summer and winter seasons. There
is a call-in process to mobilize staff outside of regular shift hours during a full plow. There are
also procedures to ensure that overtime is allocated equally between staff. And finally, there
are procedures to track staff time against work orders to ensure labour and equipment
expenses are coded to a cost centre.
Currently the "job pool" process consists of one pool in which staff from both operations
divisions participate (roads/traffic and parks/cemeteries). Staff like that they are able to choose
their winter work based on seniority. However, there are a number of areas for concern with
this resourcing model including that performance management is difficult for supervisors when
staff move between supervisors and / or managers from season to season, the least
experienced staff end up doing the hardest jobs (last pick in the pool get stuck with less
desirable jobs that they may not be experienced in doing), it is difficult to get the correct skill
set required for each role, and it is a stressful process for all involved.
Benchmarking indicates that with the exception of only one city, the other cities do not allow
staff to choose their winter position; the duties are assigned by management.
The above information was reviewed with management in a workshop to explore several
resourcing models including:
• Status quo — one job pool
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• Two job pools (Parks and Roads)
• Dual job classification (i.e. summer job is linked to specific winter job)
Each model was analyzed based on the following considerations to determine the best model
for the City of Kitchener in order to achieve objectives:
• How the model helps or hinders the ability to meet objectives and maintenance
standards
• Impact on administrative functions (payroll, training, records, etc.)
• Labour relations / union implications
• Impact on safety
• Impact on ability to manage staff performance
• Ability to resource full plow events
• Impact on non -winter tasks (i.e. work that is done when it is not snowing)
• Impact on staff and management morale
• And any other impacts or considerations
The majority of management felt that the resourcing model that would have the best impact on
all of the criteria and allow them to achieve objectives is to move to a two pool system. This
option still allowed staff choice in their winter roles and rewards seniority however, also
included a number of benefits compared to the current system including:
• Easier to provide consistent performance management as staff will remain reporting up
through the same manager (even if they change supervisors)
• Skills are more closely aligned to the required work and there will likely be less staff who
do not have the required permits prior to the start of the season
• Non -winter tasks can be completed more efficiently with staff who are familiar with the
work
• Potentially less administrative work during season changes as staff remain in one
division and support staff are familiar with the time sheets and cost centres
• It will place a focus on having dedicated resources for sidewalks, which is important
given the new maintenance standards
Due to other changes that are taking place for the next winter season including a new sidewalk
program and changes to the maintenance standards, it is recommended that staff be notified
that the change to a two pool system will not take effect until the 2019/2020 season. This
allows time to carefully analyze which positions should fall into which pool in order to provide
adequate supervision and coverage to complete the required work.
Recommendations:
• Analyze and decide which jobs will fit in each of the two job pools. Ensure adequate
supervision of all staff.
• Implement the two pool system in 2019/2020 including staff communications in 2018
regarding the change in process
2-13
Customer Service
Councillors and citizens (through councillors) have expressed an interest in knowing where
their plow is. Many of the winter related calls to the corporate contact centre are simply
requests for information about when the plow will be at certain locations. Other cities have
implemented a "Where's My Plow" app and real time tracking of where each vehicle is.
Management has expressed concerns with the risk that misinformation may be communicated
to the public through such an app. Kitchener prioritizes routes based on road class which may
be confusing for residents. For example, they may see the plow on the map on an adjacent
street and assume that it will be coming down their street next. However, this may not be the
case if the first street was a priority 1 street and their street is a priority 3 street. The city does
have an interactive map which shows the priority of each street and communications staff
provide updates to residents about which priority of street the plows are currently working on.
Recommendations:
Explore the potential benefits, risks and costs to implement a "Where's My Plow" app
using the existing GPS systems and report back to Council for direction.
Winq Person
A plow and salter truck generally consists of a front blade as well as a wing. When both are in
use the width of snow removal, under normal conditions, would be 4.6 m. In the past, a wing
would generally only be used when a second person was in the truck, in the passenger seat,
and operating a wing (herein referred to as "wing person"). When a wing person wasn't
available, the operator would generally disconnect the wing or simply not use it which would
result in a width of snow removal of 3.4 m.
In the winter of 2016/2017, management decided to experiment with a pilot. They offered
salters the option to be a single operator while driving the salter truck to operate the wing. This
option would provide a premium hourly rate. It was understood that during a full plow event, a
wing person would be called upon.
The expected outcomes of the pilot were to encourage operators to operate a wing by
themselves which would allow the following:
1) Reallocation of a wing person to other duties. Also to ensure `spare' bodies for coverage
during vacation or illness.
2) Ensure that the single operator trucks were plowing a wider swath of the road, thus
resulting in a better level of service since clearing of an individual road would not take
as many passes by a plow, allowing the operator to move onto another unplowed street
sooner.
The pilot was extended to all salter shifts and routes for the winter of 2017/2018 and there was
a high uptake by operators. As part of this review, data was reviewed to determine the
effectiveness of the pilot. Unfortunately data collection proved to be a hurdle, as noted above.
2-14
Anecdotally it is thought that the supervisors now spend less time for the call -ins and the roads
are able to get serviced in a more expedient manner. Single operator trucks with the wing in
operation are able to plow approximately 40% wider than without the wing in operation, while
using one less staff than previously. Staff can be re -deployed to other functions, which is
important as the city adapts to the new maintenance standards and requires higher levels of
service for sidewalks, bike lanes and monitoring activities.
A few frontline staff noted the benefits of having a wing person especially during a full plow
event or when conditions were such that it was difficult to see. It was felt by some that wing
persons are necessary for safety because the current equipment does not allow the driver to
see the wing. Without the wing person, the driver is `going by feel' and if the snow is heavy the
wing rides up on the curb and then there is the potential to hit poles, hydrants, etc. However,
there was not an increase in the number of accidents during this pilot period that could be
attributed to not having a wing person. The majority of the benchmarked municipalities did not
have a wing person.
Recommendations:
• Continue to evaluate a one person wing operation and work with the union to review
further implementation.
Cul-de-sacs
Currently the city employs four separate contractors that cover nine cul-de-sac routes (i.e. nine
people) using blowers. The routes cover over 500 cul-de-sacs across the city. These
contractors are only called in when there is a snow event (i.e. >8cm of snow). If there is less
than 8cm of snow then city staff use the plows to clear them which does not do as good a job
as the blowers. Sometimes residents question why there are two different types of equipment
being used as they are not aware that a contractor provides the service only during snow
events.
During the staff consultation some staff felt that the city could do a better job than contractors,
at a cheaper price if staff had the proper equipment (i.e. blowers instead of plows).
The decision to use contractors instead of city staff was based on being able to provide a
better level of service to residents while meeting the maintenance standards, within the current
complement of staff. In the past it would take staff 2-3 days to clear all routes. Process
improvements including the introduction of the snow event parking by-law, GPS units, and use
of contractors for cul-de-sacs has enabled all routes to be cleared in less than 24 hours
(usually within 14 hours). The maintenance standards state that class 5 roads (which applies
to cul-de-sacs) will be addressed to reduce the snow accumulation to less than or equal to 10
cm within 24 hours. The current service delivery model allows the city to meet or exceed these
standards.
Staff indicated that each cul-de-sac bulb takes 10-15 minutes to clear. At 500 bulbs that
equates to an additional 125 hours. If staff were to complete the bulbs as part of their plow
route it would take an extra 2-4 hours per route. Due to hours of service legislation that would
mean completing about 80% of the route, going home to rest and then resuming the next day.
2-15
Also, there were previously many complaints from residents about snow being pushed into
driveways during heavy snowfalls because the city uses the plow rather than a blower to do
the work. Most residents are very happy with the current service and prefer the blowers used
by contractors to when the city comes through with the plow.
As part of this review an analysis was done to evaluate other service delivery models including
the following options:
• Utilizing existing staff to clear cul-de-sacs during snow events using blowers or graders
• Hiring 9 new staff to clear cul-de-sacs at all times using blowers or graders
• Continuing to contract out, but switching to graders instead of blowers
• Utilizing existing roads staff to clear cul-de-sacs as part of their normal routes using
plows
• Adding 4 new plow routes, including new staff and equipment, to plow roads and cul-
de-sacs
All of these options were evaluated using a standard evaluation matrix based on the following
criteria:
• Fixed operating costs (i.e. regardless of number of snow events, what is the minimum
operating cost)
• Capital cost of additional equipment
• Example of total cost if there were 5 snow events
• Number of new staff required
• Workload impact on staff during snow events (qualitative analysis)
• Level of cul-de-sac service (qualitative analysis)
• Impact on overall route cycle time and city wide service level (qualitative analysis)
• Other pros
• Other cons
• Possible public perception of each option
Based on the results of the evaluation matrix it is clear that the best option continues to be to
contract out snow event clearing of cul-de-sacs using either blowers or graders. This option
has the lowest fixed operational costs, does not incur capital costs or require additional staff,
and it provides an excellent level of service to residents. It also alleviates the burden on staff
during snow events and ensures they meet provincial maintenance standards.
Recommendation:
• Continue to contract out cul-de-sacs clearing for snow events (>8cm of snow).
Sidewalks
The City of Kitchener manages sidewalk maintenance in winter through a combination of
maintenance by city staff and residents. There are currently 1,202 km of sidewalks and
walkways in the city, 216 km or 18% of which are maintained by city staff, with the remainder
2-16
being maintained by property owners. The city maintains all back -lotted properties (i.e.
sidewalks that run behind an owner's property), sidewalks adjacent to city owned properties,
and all downtown sidewalks. The downtown sidewalk maintenance is funded through a special
taxation to downtown properties.
City maintained sidewalks are maintained with the use of trackless equipment that clear snow
and apply salt at the same time. Walkways (a pathway that connects one roadway to another)
is another segment that is maintained by the city, as are step -routes (walkways that contain
stairs), however both are carried out by different crews (with different supervisors) as they
utilize different equipment. Maintenance of downtown sidewalks is also provided by a different
crew with different equipment.
The maintenance of sidewalks by residents is dictated by by-law Chapter 687, Snow and Ice
Removal from Roofs and Sidewalks, which requires adjacent property owners to clear
municipal sidewalks of ice and snow within 24 hours after the end of a snowfall. At present the
by-law relies on resident complaints in order for city by-law staff to investigate deficient
properties, as well as the 8 adjacent properties, leaving the onus on residents to report on their
neighbor(s) thus creating friction. Upon initial inspection a notice is issued to the property
owner informing them of their responsibility to remove ice and snow from sidewalks. If upon re-
inspection the property is still deemed deficient but it is clear that an attempt was made by the
property owner, then they will be given a second chance. Otherwise a contractor is brought in
to clear it and the cost is appended to the property tax bill.
While the by-law itself does not specify bare pavement standards, the information on the city's
website and in hardcopy communication materials indicate that residents must clear to bare
pavement standards. While most other municipalities do have similar by-laws that state the
maintenance of the sidewalk is the responsibility of the adjacent property owner, there are only
a few that specifically state "down to bare pavement". However it is felt by staff that "passable"
conditions are more difficult to enforce effectively compared to "bare pavement", as "passable"
is a matter of interpretation and may look different for each resident or by-law officer.
In 2015 there was an improvement in the process in which by-law staff became more proactive
in monitoring properties that were identified as chronic offenders, as well as contracting out the
snow clearing activities, which reduced the response time from one week to one day.
The by-law division has ordered two tablets which will be deployed for snow/ice complaints in
the 2018/2019 season. Currently when an officer attends to a complaint they inspect the 8
adjacent properties and need to handwrite any notices on carbon copy paper to leave with the
property owners and then return to the office to open electronic files for those properties.
Having tablets will allow staff to open the files in the field and print the notices in their vehicles,
reducing time and cost.
As previously mentioned, prior versions of the maintenance standards pertained solely to road
conditions and as such roads were afforded a higher level of priority over sidewalks. However,
the 2018 release of the revised standards show that snow and ice removal as well as ice
prevention and monitoring are now outlined with compliance standards for sidewalks, multi -use
2-17
pathways and bike lanes. The city needs to implement a program to meet the new standards.
This may include continued reliance on property owners.
Curb -faced sidewalks have always presented a unique challenge to the snow clearing
activities as there is little to no storage for the snow that plows clear from the roadway. As part
of the maintenance standards, it is required to ensure roads have a minimum lane width of the
lesser of three metres for each lane or the actual lane width, to ensure the roadway remains
passable, and the lack of storage hampers the snow plowing activities without filling in the
adjacent sidewalk. To complicate matters more, bike lanes are now under a greater scrutiny of
care, due to the new standards, and can no longer be used for long term snow storage. The
accumulation of snow requires snow loading activities, which is both costly due to the
significant pieces of equipment involved, but also that it requires staff availability.
The coordination of efforts is a common thread that was heard, both internally and externally,
as an operator may clear a curb -faced sidewalk only to have it filled in again when a plow
comes by. From an efficiency and optics perspective, the city has a great opportunity to
leverage its GPS data to align and coordinate the established road and sidewalk routes.
The issue of the city maintaining all sidewalks in the winter months has been a recurring
theme, especially in years that see heavy snowfall. A report was released by TriTAG (Tri -Cities
Transportation Action Group) in early 2018 which evaluated the efficacy of the current policy
and, with the use of volunteers, collected data and created metrics which identified
inconsistent sidewalk conditions and poor enforcement of the current sidewalk snow clearing
by-law. It was observed that within the average walking distance to public transit,
approximately 160m, the probability of encountering an obstacle/obstruction that would impede
those with a stroller, wheelchair or other mobility impairment was greater than 80%.
These statistics are concerning as they do not align with the desired outcome of walking
mobility. TriTAG's stance is that the city's present system of resident -led sidewalk clearing is
"failing to ensure safe and reasonable access to our streets and transit network during the
winter". Also noted was that complaints are not accepted until 24 hours after the snowfall,
which some feel is not an acceptable level of responsiveness.
There are a number of affordable support services available to assist with snow clearing to
seniors and those with mobility issues such as The Working Centre, Community Support
Connections/Meals & Wheels & More as well as volunteer programs such as the Snow Angel
awareness and recognition program, created by the city, and even volunteer hour opportunities
through local high schools.
Although those in favour of the city maintaining all sidewalks have been most vocal, many
residents have also expressed a desire to maintain the status quo. Those opposing city wide
sidewalk clearing are uncertain around the level of service that would be provided, and feel
that it would create an additional expense to tax payers while not necessarily providing better
service to the vast majority of residents that clear their sidewalks promptly. They also felt there
could be more complaints pertaining to sod and retaining wall damage.
2-18
Based on the changes to the maintenance standards and the continued interest from various
members of the public and different advocacy groups, the City of Kitchener is proposing to
explore three different service delivery models and one monitoring practice over the next two
winter seasons. If approved by Council, quantitative and qualitative data will be collected
during that time which will help inform recommendations for the 2020/2021 winter season and
beyond. The end goal is to be able to provide year-round safe, accessible sidewalk conditions
that support active transportation and environmental objectives while meeting provincial
maintenance standards. Report INS -18-023 will be brought forward to Community and
Infrastructure Services Committee on June 18, 2018 for Council consideration and direction on
a proposed sidewalk winter maintenance program. More details will be provided at that time.
Recommendations:
• Undertake a cost / benefit study of various sidewalk winter maintenance service delivery
options in order inform decision making.
• Track data for all service delivery models including cost to deliver the service,
operational challenges, resident feedback, ability to meet maintenance standards,
effectiveness regarding accessibility / mobility, time to complete, and resulting condition
of the sidewalk.
• Review the wording of the by-law Chapter 687, Snow and Ice Removal from Roofs and
Sidewalks, to mandate limits on accumulation to ensure regular maintenance is taking
place, even during sustained/consecutive days of snow accumulation and to address
ice formation.
• Coordinate sidewalk and plow routes to avoid having to re -do curb -faced sidewalk
sections.
• Place more priority on sidewalk operations through increased shift coverage.
Bike Lanes
"Cycle -friendly programs and infrastructure are key elements of public health, urban quality of
life, and the efficient use of motor vehicle roadways." (City of Kitchener Cycling Master Plan,
2010). The city currently has 131.7 km of bike lanes (which include boulevard multi -use
pathways) and plans to implement another 269.4 km over the next several years, which is a
304% increase.
The Cycling Master Plan is a key document which presents both a network of bikeways to be
implemented over time, policies to support making Kitchener a bicycle -friendly city, and related
practices and programs to further those policies into action. Within the plan, recommendation
7.4.2 deals with winter maintenance and aims to "develop a primary network of trails,
sidewalks and bike lanes that will be maintained during the winter months to standards
matching those for vehicle lanes."
Up until this year the provincial maintenance standards were silent on required winter
maintenance for bike lanes. However the latest revisions clearly spell out new requirements
for municipalities.
2-19
The standard sets out service levels for on -road bike lanes for addressing snow accumulation
and icy conditions based on the road class:
Class of
highway
Snow
Depth
Bike lane
Time to
clear
Road time
to clear
Ice treatment time
for roads & bike
lanes
1
2.5 cm
8 hours
4 hours
2 hours
2
5 cm
12 hours
6 hours
4 hours
3
8 cm
24 hours
12 hours
8 hours
4
8 cm
24 hours
16 hours
12 hours
5
10cm
24 hours
24 hours
16 hours
Staff will have double the amount of time to clear snow accumulation from bike lanes as they
do roads.
Staff currently use bike lanes for snow storage if there are curb -faced sidewalks or no
alternative for snow storage such as the boulevard. They also do snow loading for bike lanes
located on the boulevard.
Staff are not sure yet how they will clear around design obstacles such as traffic islands. They
also noted that the current trackless equipment is generally not wide enough for the multi -use
trails and more than one pass would be required to clear the entire trail. There is uncertainty
from staff of how to be in compliance with this new regulation and what equipment will be
needed.
Staff are also investigating enacting a by-law which would see all but a core network of bike
lanes officially closed for the winter season.
Research into what others are doing in relation to bike lane maintenance reveals a range of
different approaches such as:
• Winter maintaining priority cycling routes in the downtown core (Toronto)
Bike lanes are cleared at the same priority as major roads (Edmonton)
The cycling network is prioritized over roads as people use bikes more than cars
(Copenhagen)
Many cities establish a core cycling route which is maintained in winter. It is common to have
a policy to specify winter maintenance service levels for bike lanes and to determine the
priority for clearance based on classification of the adjacent roadway. Most clear their
prioritized bike lanes within 24 hours of the snow fall. Most cities specify the amount of
accumulated snow that is acceptable before clearing will commence, usually 2.5 cm.
Regarding equipment and techniques for clearing snow from protected bike lanes, due to
variations in weather patterns across North America and Europe there was no best solution
2-20
that works best for all climates. In cities like Copenhagen that place a higher priority on bike
lanes over roads, specialized multi -use sidewalk sweepers with salt dispensers are used.
Recommendations:
Transportation services and operations staff to define a core transportation network,
including bike lanes. Coordinate this work with the Pedestrian and Cycling Master Plan
update.
Re -define plow routes if required to ensure that all core network bike lanes are cleared
within the timeframes set out in the maintenance standards.
If a bike lane amendment is made to the by-law regarding the core transportation
network, investigate signing and communication techniques to identify the network.
Windrows
A windrow is the pile of snow left at the bottom of driveways or intersections after the plow has
gone by. Council had expressed an interest in exploring the clearance of windrows for
residents as this is an area that they receive many complaints about each season. The snow
left by the plow is occasionally deep, icy, and difficult for property owners to clear on their own.
Research into what other cities do with regards to windrows has found that a limited number of
municipalities do provide some very limited form of windrow clearing. A summary of the
research can be found in Appendix A of this report which shows those municipalities which
either have or are contemplating a windrow program, as found through a simple online search.
The vast majority of cities that offer windrow service only provide it following winter snow
events and only for elderly or disabled residents. Only two cities were found, Vaughan and
Grand Prairie that offer windrow clearing city wide to all residents.
Most cities that have a program have an application process in which residents must submit
proof of age or disability on an annual basis in order to be included in the program. Some
programs also stipulate that there be no other able-bodied people over the age of 12 in the
household before assistance will be given. Some of the programs limit the registration to the
first 75-150 applicants, which allows the cost to be budgeted ahead of time and capped. Other
cities do not have a cap on the program. Whitby found that on average they get around 600
applicants, mostly seniors. Richmond Hill receives approximately 1700 applicants per year
and Oakville receives 375.
The application forms indicate the terms of the program including service levels and that the
city will not be responsible for any damage to property.
The costs vary greatly from city to city. Although costs were not available from all cities, the
cost per driveway range from $6 to $240. Some cities provide the service for free while others
charge a small fee for the season in order to recoup some costs, ranging from $50-100 per
season. Most cities contract this work out, either separately or as part of the cul-de-sac
contract. The contractors use either backhoes with front end loader attachments or pick-up
trucks with plows.
2-21
Note that as part of the sidewalk maintenance program a recommendation is being made to
partner with community agencies, such as the Working Centre, to provide administration and
staffing for sidewalk clearing assistance services. The service would be provided to those with
a demonstrated need for assistance. It might be possible to coordinate a windrow clearing
program with the sidewalk clearing program as it would likely apply to the same customer
group.
Although equipment does exist that would attach onto a grader for use during the initial plow,
this was not seen as feasible by staff for several reasons. First, it would slow down the
efficiency of the plow route, meaning that many more routes would need to be added in order
to continue to meet the maintenance standards. Second, this type of equipment may be
impractical in many situations due to narrow lot sizes and driveway spacing resulting in lack of
sufficient storage for snow. Third, the city only owns a few graders so this would be a large
capital expense to purchase graders to cover all routes. And finally, this option requires Heavy
Equipment Operator staff to operate the grader who are paid at a higher rate which would be
an additional expense to the city.
It is not recommended that the city implement city-wide windrow clearing for all property
owners due to the cost of the equipment, efficiency of the plow routes, and time to complete all
routes. However, if Council would like to see an increased level of service with regards to
driveway windrows, a program aimed at assisting those that cannot clear their own windrows
due to age or disability could be implemented. However, the cost could not be absorbed in
current budgets and would need to be funded through the tax base. The estimated cost of
such a program based on 1700 participants, 6 snow events, and $20 cost per driveway would
be approximately $204,000 annually. This could be staffed through community agencies in
conjunction with a sidewalk program or contracted out as part of the cul-de-sac contract.
Council would need to decide on the level of municipal subsidy for the program.
Recommendations:
• Staff should seek Council direction regarding the desire to provide a driveway windrow
program.
Conclusion
The city generally meets or exceeds the Ontario maintenance standards regarding winter
maintenance activities for roads. With the release of changes to the standard to include
sidewalks, trails and bike lanes staff need to reassess delivery models in order to ensure
continued compliance and the provision of a safe, accessible transportation network. Climate
change and growth will also have an impact on the city's ability to meet the standards with
current resourcing. New approaches may be required related to staffing models, equipment
used, and services provided. Council will have the opportunity to provide direction for some of
the changes in service level during budget discussions.
2-22
ALIGNMENT WITH CITY OF KITCHENER STRATEGIC PLAN:
This report supports the achievement of the city's strategic vision through the delivery of core
service.
FINANCIAL IMPLICATIONS:
There are no financial implications related to this report.
COMMUNITY ENGAGEMENT:
INFORM — This report has been posted to the city's website with the agenda in advance of the
council / committee meeting.
ACKNOWLEDGED BY: Dan Chapman, CAO
2-23
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