West Shore RCMP Facility Expansion Council Validation

RECOMMENDATION:

THAT the Committee recommends the following to Council:

a) Endorse the attached West Shore RCMP Facility Expansion Council Validation Report (Appendix A), and b) Direct the Chief Administrative Officer to finalize and enter into a CCDC-30 contract for execution, and c) Approve moving forward with the detailed design and construction of the project.

ALTERNATIVE OPTION:

THAT the report dated January 7th, 2026 from the Chief Administrative Officer titled “West Shore RCMP Facility Expansion Council Validation Report” be received for information.

PURPOSE:

The purpose of this report is to provide the Committee with the opportunity to review:

• the history of the West Shore RCMP Facility Expansion Project
• the options and alternatives considered for the expansion
• the Integrated Project Delivery (IPD) procurement methodology
• the financial impacts
• the contractual obligations to provide an appropriate facility for the RCMP

Town Administration is seeking the endorsement of the West Shore RCMP Facility Expansion Council Validation Report, as well as authority to continue preparation of the CCDC-30 (2025) contract and to forge ahead with the detailed design and permitting required for this project.

EXECUTIVE SUMMARY:

The West Shore RCMP Facility Expansion Project will involve the demolition of the 1966 two-story 7,642 ft² structure and its replacement with a new 55,714 ft² expansion, as well as renovations to the 1999 building. The expansion will meet the latest RCMP standards, 2024 Building Code post-disaster standards, BC Step Code sustainability standards and accessibility standards.

The purpose of the West Shore RCMP Facility Expansion Project is to meet contractual obligations to provide adequate accommodations for West Shore RCMP officers and support staff required for the next 25 years and beyond. With the population served by the West Shore detachment expected to increase from 104,188 (2025) to an estimated 150,538 (2050), it is anticipated that an additional 58 officers and 21 support staff will be required by 2050.

The West Shore RCMP Facility Expansion Project will have a maximum allowable base target cost of $87.5 million for design and construction (including contingency and profit pool). The three Owner Municipalities (View Royal, Langford and Colwood) are seeking to borrow up to $103 million through the creation of a Capital Regional District (CRD) Sub-Regional Service. Up to an additional $15.5 million beyond the design and construction budget will be utilized for land acquisition to expand the site parking, contingency, project insurance, permits, move management, swing space, temporary storage, project management, and IPD advisory services.

The West Shore RCMP Facility Expansion Project will be delivered through the Integrated Project Delivery (IPD) model. IPD provides greater cost certainty through its shared risk/reward model. IPD also focuses on “Best for Project” innovation and collaboration.

The IPD Team was assembled with the public procurement of an IPD advisor in March 2024, and then the public procurement of the IPD Team in December 2024 consisting of the General Contractor, Architects, Engineers (mechanical, electrical, and structural), and trade partners (mechanical and electrical).

With the IPD Team assembled, the Validation Phase started in January 2025 to develop and confirm that the Owner’s Conditions of Satisfaction (COS) and Base Program can be delivered for the base target cost of $87.5 million. The validation phase was successfully completed in December 2025 with the delivery of a jointly-endorsed report outlining the IPD Team’s commitments outlined. The poly-party agreement (CCDC-30) between the IPD Team members is ready for execution.

The Validation Report will be considered by View Royal, Langford, and Colwood councils in January 2026, with each municipality to give a “go” or no go” decision to proceed with the West Shore RCMP Facility expansion. If all three municipalities reach a “go” decision, detailed design and permitting will continue and demolition of the 1966 section of the facility would commence in early 2026.

History of the West Shore Police Building (1966-1999):

• 1966 - a 7,642 ft² facility was built and is at the end of its 60-year expected life.
• 1994 - View Royal purchased 27.25% and Langford 72.75% of the facility.
• 1997 - Colwood bought into the facility, and ownership was adjusted to View Royal (18.60%), Langford (46.32%), and Colwood (35.08%).
• 1998 - Police Building Operating Agreement was reached between the View Royal, Langford, and Colwood (the “Owner Municipalities”).
• 1999 - 26,400 ft² addition was built, projected to provide sufficient accommodation for the RCMP for 12 to 15 years (2011 to 2014).

Progress Towards West Shore RCMP Facility Expansion (2019-2023):

• 2019 - RCMP Officer in Charge Superintendent Todd Preston alerted the Owner Municipalities that the RCMP building was nearing or at capacity.
• 2019 & 2020 - RCMP E-Division conducted two Space Needs Assessments
• July 2020 - preliminary site survey for redevelopment was conducted.
• November 2020 – RCMP E-Division commissioned WA Architects to provide a redevelopment concept sketch.
• January 2021 - Colliers Project Leaders was commissioned to provide a feasibility study for the Owner Municipalities to identify stakeholders and projected population growth. The feasibility study recommended the existing site due to lower costs, and the RCMP recommended the existing site for its preferred central location and highway access.
• November 2021 - WA Architects provides a second feasibility study.
• February 2022 – a Joint Police Services Steering Committee was established, consisting of the Mayors and CAOs of the Owner Municipalities.
• March 2022 - Colliers presented options to the Joint Police Steering Committee recommending building on the existing site, 89,000-96,000 ft² to accommodate 20-25 years of growth, and a Class D cost estimate of $103M ($82.4 million with a contingency of 25%).
• May 2022 – The Joint Police Steering Committee chose Integrated Project Delivery (IPD) as the project delivery method and procurement approach.
• September 2022 – The project plan was presented to the Joint Police Steering Committee.
• December 2022 – The project plan was presented a second time to the newly-elected Owner Municipality councils following the municipal election.
• January 2023 – The Owner Municipalities approved of IPD as the procurement approach, established a Validation Budget of $1.2 million (or 1.5% of $80 million project), and tasked Langford with being the fiscal agent for the project.
• November 2023 – All three Councils passed a resolution requesting that the CRD create a sub-regional building service to debt-finance the expansion.

Recent Progress towards West Shore RCMP Facility Expansion (2024-2025):

• January 2024 - project budget of up to $103 million was established, with up to $87.5 million towards construction and up to $15.5 million towards land acquisition, insurance, project management and contingency.
• January 2024 - Owner Municipalities requested the CRD to establish a sub-regional service to finance the project for up to $103 million.
• 2024 - Langford purchased and prepared the land for parking on the site, secured overflow space for the West Shore detachment, and secured a license for overflow parking from the Island Corridor Foundation (ICF).
• April 2024 – the Owner Municipalities procured Colliers Project Leaders as the IPD Advisor and began developing the Conditions of Satisfaction for the project.
• September 2024 - Architect (Group 2 and Stantec) and General Contractor (Kinetic) were selected through a public procurement process supported by the IPD Advisor.
• November 2024 - the Owner’s Group, IPD Advisor, Architect and General Contractor selected the major trades through another public procurement process. (Introba – Mechanical Engineer, ERB Technical – Mechanical Trade, WSP – Electrical Engineer, Houle – Electrical Trade, WSP – Structural Engineer).
• December 2024 – the first draft of a RCMP Building Cost Memorandum of Understanding was circulated between the Owner Municipalities.
• May 2025 - the MOU was sent to the CRD for legal review.
• June 2025 - View Royal Council approves the MOU.
• June 2025 - IPD Team requests a budget increase of $900,000 to complete the validation due to complexities related to increased post-disaster requirements and the retrofit.
• July 2025 - Langford Council approves the MOU
• October 2025 - Colwood Council approves the MOU and the Project Charter
• October 2025 - Owner Municipalities were informed by E-Division that the RCMP are not committing to a Forensic Identification Services (FIS) lab in the West Shore
• November 2025 - CRD approved the West Shore RCMP Building Cost Sharing Memorandum of Understanding to borrow $103 million through the Municipal Finance Authority (MFA) and transfer the funds to Langford in trust, with the CRD retaining title to the building until repayment is complete.
• November 2025 - CRD Board approved the Service Establishment Bylaw and the Loan Authorization Bylaw, both of which have been forwarded to the Inspector of Municipalities for provincial approval
• December 2025 - View Royal and Langford councils gave council consent to the CRD bylaws to establish the sub-regional service
• December 2025, Colwood council opted to defer the decision on council consent to establish the sub-regional service and to conduct an independent audit

The Validation Phase of the Project (January to December 2025):

The Validation Phase of the RCMP Facility Expansion Project launched in January 2025 with onboarding and security clearances. Validation is based on achieving three factors: Conditions of Satisfaction, Target Cost of $87.5 million construction budget, and Schedule of Delivery.

The original budget for the Validation Phase was $1.2 million (representing 1.5% of $82M project budget estimate from 2022). At the July 25th, 2025 Project Team Overview and Update meeting, the IPD Team requested an increase in the validation budget to $2.1 million (representing 2.0% of the $103 million project budget). The purpose of this additional funding was to consider project risks such as retrofits, site constraints and the new post-disaster seismic code and to provide the IPD Team with confidence. Validation budgets are typically 2.5% to 3.0% of the total project budget.

The Conditions of Satisfaction:

The Owner Municipalities CAOs developed the Conditions of Satisfaction for the RCMP Facility Expansion. The Conditions of Satisfaction align the project goals at the beginning of a project and guide the IPD Team throughout the project.

1. Facility Access and Presence in the Community Accessible front entry, modern street presence, maximize daylight for occupants
2. Resilience and Sustainability Designed to meet Structural Post-Disaster 2024 BC Building Code with seismic separation from 1999 building, meets BC Energy Step Code with elimination of natural gas equipment, efficient mechanical, electrical and plumbing, high performing building envelope
3. Operational Continuity Construction schedule optimized to minimize disruption to the RCMP, main IT, electrical room and backup power to be in new building to ensure post-disaster functionality
4. Functional Design/Future Proofing New build of 55,714 ft2 anticipated to accommodate growth for over 25 years
5. Indigenous Engagement & Integration The informal Picnic & Paddle event planned for July 2025 between the IPD Team, RCMP, Songhees and Esquimalt First Nations was cancelled. Integration of indigenous culture into the detailed design is planned for 2026.
6. Budget and Schedule The $87.5m construction budget (including contingencies and profit) for the project has been confirmed. The design, construction, and commissioning schedule has been confirmed.

PROCUREMENT METHODOLOGY: Integrated Project Delivery (IPD):

The Joint Police Steering Committee chose the Integrated Project Delivery (IPD) project delivery method and procurement approach for the RCMP Facility Expansion project in May 2022. The IPD method was selected to mitigate risks of budget overage, to provide cost transparency, and to address the complexity of the Ownership Group.

In IPD, project management is not the duty of a single Project Manager but is a collective responsibility. The traditional Project Manager role is replaced by a multi-tired leadership structure that emphasizes collaborative decision-making. This leadership structure consists of the Senior Management Team (SMT), the Project Management Team (PMT), and several Project Implementation Teams (PIT). All IPD Team members require Enhanced Security Clearance from the RCMP.

The IPD team was assembled through a public procurement process led by the City of Colwood. First, Colliers Project Leaders was chosen as the IPD Advisor in March 2024. The IPD Advisor ensures that the Owner Group’s interests are represented and is a neutral third-party that coaches the Team on IPD principles, Lean methodologies, and a collaborative culture. The IPD Advisor does not manage the project or dictate decisions.

With the guidance of the IPD advisor, the Lead Architect (Group2 and Stantec) and General Contractor (Kinetic Construction) were selected in September 2024 by the Ownership Group through a public procurement process. Finally in November 2024, the Owner’s Group, IPD Advisor, Architect and General Contractor selected the major trades through another public procurement process. (Introba – Mechanical Engineer, ERB Technical – Mechanical Trade, WSP – Electrical Engineer, Houle – Electrical Trade, WSP – Structural Engineer).

The Senior Management Team (SMT) is responsible for the high-level strategic direction of the project and ensures alignment with the project goals. The SMT consists of an Owner’s Representative, the IPD Advisor, Lead Architect, General Contractor, and the major trades that are part of the risk/reward pool. The Owner’s Representative on the SMT was originally retired Colwood CAO Robert Earl until September 2025 and then View Royal CAO Scott Sommerville from October to December 2025.

The Project Management Team (PMT) is manages the project’s execution and technical delivery, and is responsible for day-to-day management, tracking performance, managing the project’s target costs, and ensuring that the construction process meets the Owner’s Conditions of Satisfaction. The PMT consists of an Owner’s Representative, the IPD Advisor, Lead Architect, General Contractor, and the major trades that are part of the risk/reward pool. The Owner’s Representative on the PMT is Colwood’s Manager of Building Inspections and Bylaw Services.

PROJECT GOVERNANCE:

The three Owner Municipalities struck a Joint Police Services Committee in 2022, consisting of the three Mayors and three CAOs. In 2025, the Joint Police Services Committee developed a Project Charter (Appendix B).

The City of Langford will act as the fiscal agent for the project. The $103M in funds borrowed will be transferred from the CRD to Langford to be held in trust. The use of funds will be governed by the Memorandum of Understanding between the CRD, Langford, Colwood, and View Royal (Appendix C).

The City of Langford has acquired and remediated the lands adjacent to the current facility. Langford has provided “swing space” and temporary storage for the RCMP to operate from.

The City of Colwood provided their procurement expert in 2024 to assist the Ownership Group with the public procurement processes to select:

• IPD Advisor: Colliers Project Leaders
• General Contractor: Kinetic Construction Ltd.
• Architect of Record: Group2 Architecture Interior Design Ltd.
• Architect (Supporting): Stantec Architectural Ltd.
• Structural Engineer: WSP Canada Inc. - Structural
• Mechanical Engineer: Introba Canada LLP
• Mechanical Trade: ERB Technical Contracting Ltd.
• Electrical Engineer: WSP Canada Inc. - Electrical Division
• Electrical Trade: Houle Electric Limited

The City of Colwood has provided a manager to act as the Owner’s Representative on the Project Management Team (PMT). Colwood also contracted with their retired Chief Administrative Officer (CAO) to act as the Owner’s Representative on the Senior Management Team (SMT) from January to September 2025.

The Town of View Royal provided their Chief Administrative Officer (CAO) to provide holiday coverage as the Owner’s Representative on the SMT in January and February 2025. View Royal’s CAO assumed the role on Owner’s Representative on the SMT in September 2025 until the present. View Royal will be reimbursed for their CAO’s time as an SMT member.

The Capital Regional District (CRD) has been instrumental in developing the sub-regional service and the borrowing process. The CRD will own the facility for 25 years, at which point the ownership will be transferred back to the Owner Municipalities. The CRD would be involved in the establishment of a Development Cost Charge (DCC) program, although the significant CRD staff resourcing still needs to be discussed. As the expansion project is growth-related, a Protective Services DCC program could be used to offset the annual requisitions from the CRD.

FINANCIAL IMPLICATIONS:

The West Shore RCMP Facility Expansion has a total budget of $103 million. This amount consists of a base target cost for construction at $87.5 million, with up to an additional $15.5 million for Owner’s costs (land acquisition, storage and swing space for RCMP, insurance, owner’s contingency, project management costs, IPD advisory services, and permits).

In November 2023, the three Owner municipalities requested that the Capital Regional District (CRD) establish a sub-regional building service to fund the project for up to $103 million. Rather than three individual borrowing processes, the sub-regional service is more efficient and more likely to result in a unified result. In May 2025, the Owner Municipalities and the CRD established a Memorandum of Understanding (“see attached”) regarding the West Shore RCMP Building Cost Sharing. In December 2025, View Royal and Langford councils consented to enter this sub-regional service, while Colwood hired Jonathan Huggett to conduct an independent financial review of the project. Once Council consent is received from Colwood, the CRD adopting bylaws will be considered by the Inspector of Municipalities, then the CRD will consider adoption of the borrowing bylaw and temporary borrowing bylaw.

Once the funding is approved, Langford (as the project’s fiscal agent) will place the funds in trust. Return on investment of the funds received is expected to be greater than the interest cost of borrowing. Repayment of the annual debt servicing costs (interest and principal) will be apportioned between the Owner Municipalities and adjusted yearly based 50% on hospital assessment and 50% on the population of each municipality. This apportionment is based upon the historical cost-sharing between the three owners (Currently approximately 15% View Royal, 60% Langford, and 25% Colwood). Until the loan is fully repaid, the CRD will own the building.

The CRD estimates the annual long-term debt servicing payment for interest and principal at $7.3 million per year, based on the Municipal Finance Authority of BC’s (MFABC) current indicative 25-year amortization rate of 4.56%. View Royal’s estimated 15% share of $7.3M equates to an annual debt servicing of $1,095,000 per year.

The three Owner municipalities have expressed interest in the CRD establishing a Development Cost Charge (DCC) program to fund the growth-related capital cost of constructing the facility. The administration of the DCC program would require significant CRD staff resources and is continuing to be discussed.

Further offsetting debt servicing, operations, and maintenance costs will be lease revenue received from the District of Metchosin (population 5,331), the Canadian Firearms Program, and the Province of BC (on behalf of the District of Highlands, Esquimalt First Nations, Songhees First Nation and a portion of the Juan de Fuca Electoral Area).

The Owner Municipalities continue to engage with the provincial and federal governments to seek assistance with project funding.

LEGAL IMPLICATIONS:

Contractual Obligations to Provide RCMP Accommodations:

Municipalities in BC with a population of more than 5,000 persons must provide policing and law enforcement in accordance with the Police Act. The Town of View Royal entered into a Municipal Police Unit Agreement (MPUA) in 2012 to provide policing and law enforcement with the minister on behalf of the Province of BC.

The Police Act

Under Section 15 (1) of the Police Act, must provide adequate accommodation for the operations and use of the police service and for the detention, care and custody of persons held in detention. According to Section 17 (1) of the Police Act, failure to comply with Section 15 (1) of the Police Act will result in a notice issued to the municipality by the director identifying the non-compliance, directions to the municipality to correct the failure to comply, and specifics on the manner and time within which the failure is to be corrected. To date, no such notice has been received by the Town of View Royal. If the notice issued by the director under 17 (1) is not complied with, the minister may, on terms the minister considers appropriate, take other steps the minister considers necessary. This may include paying all costs incurred by the government as a debt due and recoverable from the municipality.

The Municipal Police Unit Agreement

The Town of View Royal has entered into a Municipal Police Unit Agreement (MPUA) in 2012 to provide policing and law enforcement with the minister on behalf of the Province of BC. According to Section 10 of the Municipal Police Unit Agreement, the Municipality will, in consultation with the Member in charge, provide and maintain at no cost to Canada or the Province, accommodation that is fit for use by the Municipal Police Unit and Support Staff. The municipality pays 100% of all operating and maintenance costs of the accommodations, including building and property maintenance services. These accommodations must include office space that is furnished, heated, and lighted; electricity, water supply, and building and property maintenance services; and jail cell facilities that are heated and lighted, with bedding and water supply. The accommodation will be to the satisfaction of the Commissioner and will meet the security standards of the RCMP. If the Commissioner is not satisfied, then the Commanding Officer (CO) will identify the specific concerns.

If the municipality is unable to resolve these concerns within a reasonable period of time, the CO will provide a notice which sets out the deficiencies, including any existing or forecasted major deficiency in the accommodation, and advising that the deficiencies are to be corrected within two years from the date of notice. If the deficiencies are not corrected within two years, the CO will inform the Minister that the accommodations are in non-compliance and may make necessary changes to the accommodation or lease other accommodation. The municipality would be responsible to pay Canada 100% of these costs.

ALIGNMENT WITH STRATEGIC PRIORITIES:

The West Shore RCMP Facility Expansion Project aligns with Council’s Strategic Priority of Health, Safety and Security. Survey respondents told the Town that they want to live in a safe community prepared for emergencies. Providing an adequate post-disaster facility for the RCMP aligns with that goal.

TIME CRITICALITY:

The commitment from the Integrated Project Delivery (IPD) Team is valid for a short term. Delays in the approval process could lead to IPD team members moving on to other projects.

The impacts of continuing to authorize the addition of RCMP officers and support staff to a facility that is over capacity should also be carefully considered. The RCMP are currently operating out of rented “swing space”, which is not ideal.

PUBLIC PARTICIPATION GOAL:

The desired public participation goal for the recommended option is to inform the public with balanced and objective information to assist them in understanding the problem, alternatives considered, opportunities, and solutions.

The RCMP Expansion project has spanned six years, a municipal election in 2022 resulting in three new mayors being elected and significant councillor turnover, and the retirement of two CAOs. Coordinating three municipalities and their respective communications on the project has been challenging. Finally, the use of the council consent to enter into a CRD sub-regional service is seldom utilized. The public is more familiar with the Alternate Approval Process (AAP) and referendum to assent to borrowing.

Yours Truly,

Scott Sommerville Chief Administrative Officer Town of View Royal

ATTACHMENTS:

• Appendix A: West Shore RCMP Facility Expansion Council Validation Report
• Appendix B: West Shore RCMP Facility Expansion Project Charter
• Appendix C: West Shore RCMP Building Cost Sharing Memorandum of Understanding
• Appendix D: Council Decision Context – Validation Report
• Appendix E: Population and FTE Analysis in West Shore RCMP Communities