Context  

When the City of Vancouver’s Fire Hall #17 reached the end of its life and needed rebuilding, it became the prototype for City Council’s 2016 decision that all new city-owned building projects should be certified to Passive House or another zero-emission standard. As a busy station housing firefighter dormitory and serving as a communication hub with energy-consuming equipment, the hall needed to be highly functional. The city also wanted it to set an example and spur positive change in the green building industry.  

The challenge  

The goal was simple but challenging: to design and build a fire hall that would act as a demonstration project for sustainable and Passive House construction, encouraging more Vancouver buildings to reduce their carbon footprint. During the design process the city decided to exceed Passive House standards, aiming for the building to be net-zero and to eliminate its GHG emissions entirely.  

Approach  

The fire hall was designed to meet several energy targets, including Passive House, LEED v4 Gold, CaGBC’s Zero Carbon Buildings Standard and site net zero energy with exclusions for some process loads. To achieve this, multiple energy-saving features were integrated into the design, including:  

• High-performance envelope and heat recovery.  
• A ground-source heat pump for heating and cooling.  
• On-site solar energy generation.  

The project also incorporated other sustainable building features such as using recycled materials, diverting waste from landfills and reducing water usage with high-efficiency fittings and waterwise landscaping. They also reused the brass fire poles salvaged from the previous building.  

Barriers  

One challenge was the need to have two different temperature zones: apparatus bays at 10°C and the rest of the building at 20°C. During testing, significant leakage between the zones was discovered due to electrical services penetrating the barrier. Extensive sealing solved the problem, but for future projects with similar requirements, the team recommends minimizing the need for the zone boundary to be crossed.  

Results  

The new fire hall which is more than three times the size of the building it replaced eliminated fossil fuel use and GHG emissions, which were previously at 645 GJ/year of natural gas and about 33 tonnes per year respectively. This includes using some electricity from BC Hydro, which relies primarily on low-emission hydroelectric power generation. The project achieved a 91 percent waste diversion rate during the demolition and a 40 percent decrease in water use for non-fire-training operations.  

Benefits  

Vancouver’s new Fire Hall #17 demonstrates leadership in green construction, encouraging positive changes and serving as a model for future City projects aiming for net zero. It acts as a pilot project for potential changes to the local building by-law and provides local design teams and contractors with Passive House experience they can apply to future projects. It has also encouraged local manufacturers produce higher-performance Passive House-ready items such as windows, doors, heat recovery ventilators, insulation and air sealing products.   

The facility, built to a post-disaster seismic standard, better supports the community in emergencies and includes resiliency measures like an emergency generator, full building cooling, and a filtration system to maintain clean indoor air during wildfire smoke events.  

Lessons learned  

While the Passive House industry in Canada is developing, the project team sometimes struggled to purchase certified components like fire-rated doors. In future planning for Passive House projects, they plan to follow up with manufacturers to ensure non-certified components meet requirements.  

Background  

In 2020, staff at the City of Charlottetown realized that sustainable procurement was not included in their roster of climate and environment-related initiatives. They joined the Canadian Collaboration for Sustainable Procurement (CCSP) to gain valuable peer support and knowledge. They invited the neighbouring Town of Stratford (with which they often collaborate) to join them on this journey.  

Project goals  

Stratford and Charlottetown aimed to create an action plan to integrate sustainable procurement practices into their daily operations, including a five-year road map.  

Approach  

After receiving GMF funding, the team issued an RFP and hired a consultant to develop their sustainable procurement action plans. They pooled resources where possible while still creating a separate plan for each municipality. The consultant performed the tasks outlined below: 

• Reviewed best practices across Canada,  
• Conducted extensive consultation with internal stakeholders,  
• Consultation with vendors, and;  
• Performed a high-level spend analysis.  

Barriers  

One key goal was to consult with vendors on sustainable procurement, but securing their engagement proved challenging, partly due to a major storm event. The municipalities plan to engage vendors in the future.  

Results  

The consultant delivered a five-year sustainable procurement action plan for each municipality, along with a tool kit and staff training. They presented the final documents to each council for information sharing and approval. The action plan includes a detailed road map and key performance indicators to help Charlottetown and Stratford measure progress.  

They also identified several procurement opportunities with a high potential for quick positive impact, including:  

• Reducing fleet greenhouse gas emissions,  
• Mitigating volatile organic compounds (VOCs) in cleaning products,  
• Reducing single-use packaging, and;  
• Saving energy via LED lighting.  

Benefits  

Sustainable procurement practices offer overall financial savings by shifting to a total cost of ownership approach rather than choosing initially cheaper products and services with higher long-term costs. The implementation of the plan will also provide social and ethical benefits, supporting social enterprises and local and Indigenous businesses, while promoting environmental sustainability.  

Lessons learned  

The team found their CCSP membership and resources invaluable in defining the project scope and first steps. Hiring a consultant with relevant expertise proved highly beneficial in bridging knowledge gaps within the municipalities. The initial budget turned out to be insufficient due to lengthy timelines, requiring the team to secure additional funding and slightly reduce scope. In hindsight, they would allocate extra money to the budget.   

Next steps  

Both Charlottetown and Stratford councils approved their action plans and staff are progressing on implementation. Charlottetown is training finance department staff on sustainable procurement practices and has added sustainability-related clauses to its RFP and RFQ templates. This will lead to successes such as procuring new transit vehicles and hiring consultants for the region’s transit strategy. Due to including sustainability-related questions in the procurement process, they hired vendors with a demonstrated commitment to sustainability. 

Background 

The Town of Canmore’s 2018 Climate Action Plan (CAP) set several targets for GHG emissions reduction, including a goal to reduce municipal emissions by 50 percent between 2015 and 2030. While it listed more than 60 ways to achieve these reductions and recommended setting a renewable energy target, the plan lacked robust cost-benefit modelling, which staff needed before they could proceed. 

Project goals 

Canmore wanted to conduct a renewable energy feasibility study to confirm which approaches would be the most impactful and cost-effective, and to help them set an ambitious yet feasible target. The council approved the capital funding for this study in 2019, and in 2020, the Town received matching funding from FCM’s Green Municipal Fund to help increase the study’s scope.  

Approach 

Canmore decided to focus its study on renewable energy rather than a broader approach to emissions reduction based on budgetary constraint and the complexity of the CAP’s renewable energy actions. The study had three objectives: 

1. Explore and prioritize various renewable energy options
2. Identify which renewable energy projects were the best choices to pursue in the short-term
3. Decide on the Town’s renewable energy target

Multiple criteria were used to evaluate a range of options, including cost, equity, technical feasibility, emissions reduction, public perception, local resource availability and local job creation. The five highest-potential options were chosen for further exploration: 

1. Making the new fire station net zero, 
2. Entering into a virtual power purchase agreement (VPPA), 
3. Installing solar canopies on municipal parking lots and one municipal facility rooftop, 
4. Incentivizing solar power installations on private rooftops, and; 
5. A retrofit program for lower-income households. 

Consultants were hired to conduct a detailed feasibility study for each option, with the results compiled into a marginal abatement cost curve (MACC). 

Results 

The study found that the most effective tool to reduce the Town’s GHG emissions would be to purchase a VPPA, which would result in reducing 36,515 tonnes of CO2 equivalent (tCO2e) over 20 years. Projected emissions reductions from the remaining four options ranged from 1,200 to 3,100 tCO2e over 20 to 25 years, and several options—the VPPA, an air-source heat pump for the fire station and two specific solar projects—were predicted to result in cost savings as well. 

While the focus of the study was renewable energy, it became clear throughout the process that energy efficiency and renewable energy are complementary goals and that efforts to reduce emissions must take both into account. 

Lessons learned 

This feasibility study was needed because Canmore’s 2018 CAP did not have the budget to model savings or analyze costs. It was recommended to other municipalities that it would be more efficient and useful to include comprehensive GHG and financial modelling of both renewables and energy efficiency in climate plans from the beginning. 

Breaking the full project into five individual feasibility studies had the benefit of studying more options in greater detail for the same budget, as well as hiring separate consultants with targeted expertise. However, this extended timelines, created extra work during tendering and resulted in inconsistent study approaches and formats, which meant that additional analysis was needed to create the MACC. To Canmore, the benefits were worth the extra work, but other communities should weigh the options when making this decision. 

To benefit equity-deserving residents, studies like this should include equity as a key factor when choosing which emissions reduction tools to prioritize.  

Next steps

Since the feasibility study was finalized, the following actions have taken place: 

• The fire station was completed and is the first municipal building in Canmore to use an air-source heat pump. 
• The Town is aiming to finalize its Climate Emergency Action Plan (CEAP), which updates and replaces the 2018 CAP and 2016 Climate Adaptation and Resilience Strategy, by summer 2024. This document will include further consideration of a VPPA and modelling of additional energy conservation measures. 
• The Town already has over 1 MW of solar panels between five buildings. Additional solar energy projects are being considered in future budgets. 
• A new Climate Action Incentive program using the Town’s Sustainability Reserve Fund has been approved by Council. It includes lottery-based residential and commercial solar incentives as well as an energy-efficiency retrofit pilot program targeted at lower-income households. 
   

Background

The City of Thunder Bay, Ontario, located on the northwest shore of Lake Superior, is busy spreading the word to staff, council, and its close to 109,000 citizens about how asset management planning is improving city services. To amplify its Asset Management Plan: Phase One and accompanying Future-Ready Roadmap, the city used a grant from the Federation of Canadian Municipality’s Municipal Asset Management Program (MAMP) to develop a communication plan, related resources and public engagement strategies to inform and engage staff and the public. This work in turn underscored the need to find better ways to retain knowledge and expertise when staff change positions, retire or leave. 

“MAMP funding has helped us make asset management a high strategic priority across all departments. Council, staff and even the public are more aware of the benefits of asset management planning. We’re making proactive decisions that reduce the risk of downstream issues and using centralized asset registers to help retain organizational memory.”
~ Amy Coomes, Project Manager, City of Thunder Bay

From 2018 to 2022, 17 municipal staff from the city participated in nine training activities funded by MAMP, including six awareness building activities and three technical skill development activities.

Highlights

• Centralized asset registers for better knowledge retention
• Widespread sharing of asset management experiences and insights
• More public awareness of the value of asset management and stronger engagement with the community

The challenge

Thunder Bay wanted to address gaps in internal asset management knowledge and practice, as inefficiencies and redundancies were arising from differing perspectives on lifecycle strategies and inconsistent use of condition assessments. The city also sought to raise public awareness so citizens would be better able to provide informed input into financial and asset management planning; an initial goal was to obtain citizen input on levels of service. 

The approach

To identify the necessary communication resources, Thunder Bay drew on its project manager, who oversees asset management activities across the organization, and a steering committee comprised of directors and managers from each area of the city that manages assets, such as engineering, operations and development. It also tapped into four collaboration groups (Linear [piping, roads], Facilities, Fleet, and Machinery and Equipment) where cross-departmental staff who manage similar assets meet to share approaches, insights and future plans. The resources developed to increase staff and public awareness and engagement include: 

• An internal website for staff and council that highlights asset management as an organization-wide priority, strengthening staff and council capacity and expertise and supporting councillors as they respond to constituents. 
• Videos, infographics and social media content for the public on what asset management is, why their input matters and how to get involved. Many of these resources appear on the Get Involved Thunder Bay webpage, along with surveys soliciting public input into planning priorities. 
• Tailored training sessions or “tailgate talks” for front-line staff, designed to show them how their work fits into the city’s larger asset management picture, and why a standardized approach benefits everyone.
• To build a shared understanding of asset management concepts and terminology, staff—especially new staff or those in new positions—took training such as the MAMP-funded Professional Certificate in Asset Management Planning through NAMS Canada and the Canadian Network of Asset Managers’ online AM 101 course. Through Asset Management Ontario, staff are also strengthening their connections with their fellow northern Ontario municipalities of Sudbury, Sault Ste. Marie, Dryden and Kenora, opening avenues for ongoing conversations about shared challenges and solutions.

Results

As the communication resources were developed, Thunder Bay recognized that more structured processes were needed to share staff expertise and retain this knowledge when staff retire or otherwise move on. To that end, the city created centralized asset registers detailing processes, decisions and assumptions, along with pictures and examples, to consolidate information that might previously have only been stored in someone’s head or in dusty file cabinets. An offshoot of this work was the realization that sometimes the old ways are not necessarily the best ways, and this is making it easier to update and refine current processes. 

The collaboration groups play an important role in identifying gaps and developing standardized approaches. For instance, departments started sharing condition assessment matrices when it became apparent that some areas had detailed matrices while others had none.

Council members are more aware of the long-term, proactive nature of asset management and its connection to financial planning and community resilience. They better understand how small improvements now can prevent future catastrophes and are asking for updates at every meeting and considering the infrastructure deficit when making decisions.

Finally, the exponential growth in baseline knowledge is beginning to fuel its own momentum as people see the potential and become excited about building on it. There has been a welcome shift away from the perception that asset management is the purview of one person, or a few key people. Rather, there is a recognition that everyone has a contribution to make, that everyone carries responsibility for the outcomes and that everyone reaps the rewards.

Lessons learned

• Facilitate avenues for cross-departmental discussion to identify and address knowledge gaps and share and retain knowledge. The collaboration groups have been instrumental in this regard.
• Set realistic and timely goals. Thunder Bay learned that a tendency to underestimate the time needed to accomplish a task could lead to problems. For instance, production delays sometimes arose when it took more time than expected to get agreement on key messages for communication resources.
• Adjust plans as needed. As Thunder Bay developed its roadmap, it became evident that current levels of service needed to be determined before inviting public comment, rather than vice-versa, and this adjustment was made.

Next steps

Thunder Bay is anticipating its new organization-wide asset management architecture that is being considered under the city’s digital strategy. The new system is expected to greatly improve its ability to store and share knowledge and standardize processes. 

Contact

Amy Coomes
807-252-0141 
Project Manager
City of Thunder Bay, Ontario
amy.coomes@thunderbay.ca

Related resources

• Canadian Network of Asset Managers’ online AM 101 course
• NAMS Canada’s Professional Certificate in Asset Management Planning
• Resources for the public: Get Involved Thunder Bay
• Thunder Bay’s Asset Management Plan: Phase One
• Thunder Bay’s Future-Ready Roadmap
   

Background 

Located due west of Winnipeg near the Saskatchewan border, Wallace-Woodworth, Manitoba, is an expansive rural municipality of roughly 2,000 square kilometres and 2,750 people. It was established in 2015 with the amalgamation of the municipalities of Wallace and Woodworth and the Village of Elkhorn, and its primary industries are oil and agriculture. 

With a grant from the Municipal Asset Management Program (MAMP), Wallace-Woodworth set out to develop an asset management policy, create an asset registry for roads and culverts and conduct a risk assessment of its assets. In the process, the municipality learned how formalized asset management planning can contribute to retaining vital knowledge that can be lost when a staff or committee member leaves. 

“Wallace-Woodworth’s participation in MAMP has been eye-opening for staff and elected officials. It helped us build a strong foundation of asset management knowledge, and our confidence has increased significantly. We have a better understanding of where we are headed and are excited about our efforts to document asset history and staff knowledge. We know this work will benefit our community for years to come.” 
~ Garth Mitchell, Chief Administrative Officer 
 

Highlights

• Developing “what, when and why” history books and using cross-departmental training to capture staff knowledge
• Using data for proactive planning and decision-making

The challenge

Wallace-Woodworth recognizes that Manitoba’s provincial mandate has been a driving factor influencing its asset management work. However, asset management planning was already an attractive option, given its potential to tackle several issues facing this rural municipality: 

• Consolidating a variety of systems and processes following amalgamation
• Addressing aging infrastructure and increased demands for maintenance and rehabilitation
• Implementing more structured and proactive processes for decision-making and prioritization

The approach

Much of the project was spearheaded by the Asset Management and GIS Technical Assistant. This new position, with a 50/50 split between asset management and GIS, was established in 2021 to drive asset management and emphasize its importance, based on the belief that an in-house resource was the best way to develop and improve the program and retain knowledge gained. The CAO and department heads also played a direct role, and a consultant with broad expertise in road assessment was integral to the development of the asset registry for roads and culverts, driving every single road to assess conditions. 

Five municipal staff from Wallace-Woodsworth took part in awareness-raising and skill development training funded by MAMP and delivered through the Association of Manitoba Municipalities and NAMS Canada. Staff also benefited from NAMS Canada’s Professional Certificate in Asset Management Planning course and a webinar series from the Manitoba Municipal Administrators that highlighted the City of Selkirk’s asset management practices. 

The barriers

Researching methods and best practices and setting up the processes took longer than expected, although staff anticipate that future work will be faster now that processes are in place and people know what to expect. 

Informal decision-making and communication channels sometimes made it difficult to set plans, stick to deadlines and maintain records. 

Results

Wallace-Woodworth now has an asset management policy, a detailed asset registry for close to 1300 kilometres of roads and culverts and a 2023 Asset Risk and Condition Assessment Report. The work also sparked a realization that better processes were needed to retain corporate memory as staff neared retirement. To that end, Wallace-Woodworth is: 

• Developing “history books” to summarize major events related to asset operation, maintenance and renewal, covering questions such as what, when, why, where, how, by whom, and with what costs. The history books include contracts and job descriptions of relevant staff, and a year-end summary by the department manager noting work done, lessons learned, and considerations for the coming year. They also indicate where more information—physical or digital—can be found. This approach helps new staff in particular benefit from the expertise of those who came before. Water utility is currently underway and other departments will follow.
• Implementing cross-departmental training and peer shadowing to share knowledge and standardize and replicate processes. This is reducing the number of projects being done in isolation, improving lifecycle cost tracking, and generating discussions about not only what’s working, but also what isn’t, an invaluable step in updating processes and procedures. 

Staff see their participation in the MAMP-funded project as a key success and are enjoying the resulting boost in their knowledge and confidence around asset management practices. They appreciate the opportunities to exercise their newfound ability to prioritize projects and make recommendations based on risk, rather than waiting for an asset to fail or be prioritized by ratepayers or councillors. For instance, the new registry for roads and culverts means they don’t have to wait for spring thaw to make recommendations about gravelling and shoulder pulling, and they already see the potential for developing data-driven risk management plans.

There is more awareness of the benefits of managing assets proactively. For instance, during budgeting, council requested lists of assets within a class, and is interested in a risk determination procedure for assets. As well, economic development staff are considering how improving asset management practices for buildings might help with grant applications, and there are more requests for operational and maintenance data.

Lessons learned

• Adapt existing resources and methodologies. Wallace-Woodworth adapted the best practices approach in the PASER gravel and asphalt roads manuals by adding its own road maintenance and other policies. 
• Don’t rush to buy asset management software. Wallace-Woodworth is taking time to find a system that truly fits its needs. Until then, it continues to use an easily customizable Excel spreadsheet as its asset registry. 
• Educate council. Council members acknowledge that additional training would help them engage in more meaningful discussion, particularly around asset management policies and criticality and risk scores.

Next steps

Wallace-Woodworth plans to set levels of service and key performance indicators, track asset performance and further improve standardization for communities across the municipality. As part of these activities, they will be implementing asset management standard operating procedures that will include steps, timelines and guidelines on information storage and sharing.

Contact

Brianna Hughes
Asset Management/GIS Technical Assistant
R.M. of Wallace-Woodworth, MB 
204-748-1239
b.hughes@wallace-woodworth.com

Related resources

• NAMS Canada’s Professional Certificate in Asset Management Planning course
• PASER gravel and asphalt roads manuals

About Valemount Senior Citizens Housing Society 

Founded in 1978, the Valemount Senior Citizens Housing Society (VSCHS) has been a cornerstone in providing affordable senior living in Valemount, British Columbia. With an increasing demand for sustainable housing options, VSCHS initiated a feasibility study for adding 18 new units equipped with the latest sustainable technologies, ensuring that seniors could continue to live within their community near family and essential support networks. 

Evaluating sustainable construction methods 

The feasibility study was designed to evaluate innovative construction methods and energy-efficient features aimed at significantly reducing the facility's energy consumption and enhancing the well-being of its residents. The study focused on optimizing the site layout to maximize sun orientation for natural heating and lighting, integrating a high-performance building envelope with advanced glazing and insulation to minimize energy loss, and incorporating renewable energy sources like solar panels. Water and energy conservation were also prioritized with the installation of LED lighting with occupancy sensors and earth tubes for efficient heating and cooling. The design included biophilic elements to improve indoor environmental quality and strengthen residents' connection to the natural environment. 

Emphasis on ecological design and resident engagement 

VSCHS's approach emphasized biophilic design to foster a healthier living environment for seniors. The project also planned for tenant education on energy conservation and sustainable living practices, featuring communal energy feedback monitors to engage residents actively in energy-saving efforts. 

Enhancing resident comfort and community engagement

The study aimed to establish a model for enhanced resident comfort through better thermal comfort, improved air quality, and optimized building acoustics. It also sought to increase community and environmental engagement by introducing community gardens and dedicated electric vehicle charging stations. 

Funding and support for the project

Supported by a mix of local and national funding sources, including BC Housing, CMHC, the Community Housing Transformation Centre, Columbia Basin Trust, and local municipal stakeholders, the project's funding framework highlighted its feasibility and the potential for replicating this model in other communities. 

A blueprint for sustainable senior living  

The feasibility study undertaken by VSCHS represents a proactive approach to meeting the needs of senior living through sustainable and replicable design principles. With the support of the REC program, this initiative laid the groundwork for a project that promises not only to enhance the quality of life for seniors in Valemount but also to serve as a blueprint for energy-efficient and environmentally responsible housing developments in rural areas. 

About Otter Housing Association 

In rural Newfoundland and Labrador, the Otter Housing Association (OHA) is taking significant strides to address homelessness through an innovative housing project in Port Rexton. The initiative, which plans to construct between 12 units, is designed to offer both affordable and rent-geared-to-income options. Notably, the project is committed to sustainability and energy efficiency, aiming to set a benchmark for Net Zero Energy developments in rural areas. The OHA project will be amongst the first bringing the innovative concepts of communal Sustainable Affordable Housing options and Zero Carbon Building standards to the province of Newfoundland and Labrador. This project aims to be the first certified Zero Carbon Building Design project in the province — a significant step in the right direction, towards a more sustainable construction culture. 

Planning for sustainability

Funded by the Sustainable Affordable Housing (SAH) planning grant, OHA has commenced an extensive planning phase to incorporate advanced low-carbon building technologies. This includes hiring an energy efficiency consultant and an architect with expertise in sustainable practices to oversee the project design. The association is exploring modular construction to streamline the building process while maintaining high energy efficiency standards, and is also investigating the use of solar photovoltaic systems to ensure the buildings can generate as much energy as they consume. 

Innovative features for replicability  

The project is characterized by several innovative features that promise wide replicability. It focuses on achieving Net Zero Energy status by prioritizing energy generation and conservation, and utilizes prefabricated modules to minimize construction waste and duration, providing a scalable model for similar rural housing initiatives. 

Securing future funding

Following the initial planning, OHA plans to seek further study grants from the Federation of Canadian Municipalities (FCM) to refine their construction methods based on early findings. Insights from this phase will guide future applications for capital project funding through FCM and the Canada Mortgage and Housing Corporation (CMHC). 

Social and environmental impacts

The social and environmental impacts of this project are significant. The SAH planning grant funded research on co-housing in the United Kingdom, a region where co-housing developments have gained significant popularity. This research facilitated connections between OHA and nine co-housing communities, which notably included several Passivhaus certified developments. By providing stable, community-centred affordable housing, it directly addresses local homelessness, while its emphasis on Net Zero Energy and low-carbon technologies helps reduce the community's environmental footprint.  

A model for rural housing solutions

The Otter Housing Association's initiative in Port Rexton is a prime example of how rural areas can tackle significant social challenges like homelessness through innovative and sustainable housing solutions. Supported by the REC program and SAH funding, this project not only delivers immediate benefits to those in need but also serves as a sustainable model for future developments in similar settings. As OHA progresses, its approach continues to inspire broader shifts toward sustainable and inclusive community planning. 

To learn more about OHA and their project’s progress, visit them at otterhousing.ca