**\**

**DEPARTMENT OF**  **TRANSPORTATION: RE** **SPONSIBILITIES: CONSTRUCTION: Responsibilities**  **of Commissioner**  **of Transportation**  **and Metropolitan**  **Council in**  **connection· with**  **construction of**  **light rail**  **transit project**  **discussed: Minn.**  **Stat. §§**  **471.59, 473.399**  **473.3997. 229A**  **(Cr. ref.**  **1005, 1007,**  **1016) June**  **30, 2000** 

**Representative Jim** **Rhodes, Chairman**  **Governmental Operations**  **and Veterans**  **Affairs Policy**  **Committee Minnesota**  **House of** **Representatives 409**  **State Office Building, 100**  **Cons titution**  **A venue**  **St. Paul,**  **MN 55155-1206** 
**Dear Chairman Rhodes:** 

**Thank you**  **for your**  **letter in**  **which you**  **requested a**  **formal opinion,**  **pursuant to**  **Minn. Stat.**  **§ 8.05,**  **regarding the**  **Hiawatha Light**  **Rail P-roject**  **Management Plan.**  **Your letter**  **was accompanied**  **by a**  **resolution, passed May**  **1, 2000,**  **of the**  **House Govern** **mental Operations**  **and Veterans**  **Affairs Policy Committee.** 
**Your letter**  **and the**  **resolution requested**  **that--t;p.is Office opine**  **as to**  **whether the**  **Hiawatha Light**  **Rail Project Management**  **Plan, as**  **submitted by**  **the Metropolitan**  **Council and approved by**  **the Federal**  **Transit Adminis** **tration, conforms**  **with Minnesota**  **Statutes and**  **the Legislature's**  **intent for**  **control of** **the project.**  **FACTS**

**I. OVERVIEW**  **OF PROJECT** **MANAGEMENT PLAN.** 

**A project**  **management plan is**  **a detru.Ted**  **document required**  **by the**  **Federal Transit**  **Administration ("FTA") to**  **be subm** **itted by**  **parties seeking**  **grants from**  **the FTA.**  **The Hiawatha**  **Light Rail Project**  **Management Plan**  **("PMP") was**  **submitted to**  **the FT A**  **by the**  **Metropolitan Council,**  **as the**  **proposed grantee** **of the** **FT A funds.** 

**The Attorney**  **General's Office**  **has obtained**  **a copy**  **of the**  **PMP 1**  **dated April**  **14, 2000,**  **a copy**  **of which**  **is attached**  **as Exhibit**  **1. Chapter**  **2 of**  **the PMP**  **is entitled**  **"Management Organization,**  **Approach and**  **Responsibilities." The**  **Metropolitan Council**  **has advised**  **this Office**  **that the**  **PMP dated**  **April 14,**  **2000 was**  **submitted to**  **the FT A and subsequently approved**  **by it.** 

**1 The**  **Attorney General's**  **Office has**  **received and**  **reviewed only**  **Chapter 2**  **of the**  **PMP. Unless**  **the context** **indicates otherwise,**  **references herein**  **to the** **PMP refer**  **to Chapter 2 of**  **the PMP.** **Rep resentative**  **Jim Rhodes**  **June 30,**  **2000 Page**  **2**

**The PMP**  **sets forth**  **a de** **tailed description**  **of "the**  **scope of**  **the [light**  **rail transit]**  **project implementation**  **during preliminary**  **engineering, final**  **design, construction**  **startup, and**  **revenue services."**  **PMP <][2.01.**  **The PMP**  **states that**  **its focus**  **is on**  **"a description**  **of adequate**  **staff organization,**  **com plete**  **with well-defined**  **reporting relationships,**  **statements and**  **functional responsibilities,**  **job descriptions**  **and job**  **qualifications and** **... [a] description**  **of organizational**  **structures, manage** **ment skills, and**  **staffing levels**  **required throughout the**  **construction phase"**  **of the**  **light rail transit project.**  **PMP '][2.01.** 
**In outlining**  **responsibilities for**  **the project,**  **the PMP**  **states as**  **follows:**
**The project**  **blends the**  **strengths of**  **the Metropolitan**  **Council, the**  **Minnesota Department**  **of Transportation,**  **the Metropolitan**  **Airports Commission,**  **and other**  **project partners.**  **The Metropolitan**  **Council is**  **the Federal**  **grantee, and**  **is in**  **charge of** **the project.**  **Mn/DOT is**  **responsible for**  **designing af!d**  **constructing the**  **project, and**  **the Metropolitan**  **Airports Commission is**  **responsible fo** **r construction**  **of the**  **tunnel and**  **airpo rt**  **station.**
**PMP '1[2.04.** **l.**
**The following describes**  **the respective**  **responsibilities and**  **a:ttthority of**  **the Metropolitan**  **Council and**  **the Department**  **of Transportation** **as described**  **in the**  **PMP.**

**II. RESPONSIBILITIES**  **OF DEPARTMENT**  **OF TR** **ANSPORTATION**
**The PMP**  **states that**  **"as delineated**  **in the**  **state's enabling legislation (Mitrn.**  **Stat. §§**  **473.399-473.3998), the Minnesota**  **Department of**  **Transportation, acting**  **through its**  **Commissioner, has**  **primary responsibility**  **for the**  **design and**  **construction of**  **the project."**  **PMP '1[2.04.4.2.**  **However, the**  **PMP also**  **states that**  **the Department**  **of Tran** **sportation's role**  **in the**  **project is**  **to serve**  **as an**  **"agent" of** **the Met**  **Council. PMP** **<J[2.01. Responsibil** **ities of**  **the Department**  **of Transportation**  **are specifically**  **set forth**  **in the**  **PMP. Those**  **include the**  **following:**

**• Preliminary** **Design Plan** 

**• Design**  **Man agement** 

**• Bases**  **of Design** 

**• Procurement** 

**• Preliminary**  **Engineering**

**• Soils** **Borings**

**• Aesthetic**  **Design Guidelines** 

**• Environmental**  **Services**

**• Design/Build**  **Contract Faultation** 

**• Station** **Design**

**• Utility** **Relocat ion** 

**• Design/Build**  **Civil Contract** **Representative Jim**  **Rhodes June**  **30, 2000.**  **Page 3** 

**- RFP,**  **Phase I** 

**- Roster** **of Design/Build Firms** 

**- Design/Build**  **Team Contracts**  **for Proposals**

**- RFP,** **Phase II - Selection**  **of Design**  **Build Contractor** 

**- Design/Build**  **Contract**

**- Oversight**  **of Design/Build**  **Contractor**

**■ Manage** **Design/Build Contract** 

**- Quality**  **Assurance**

**- Quality**  **Control**

**- Document**  **Control**

**- Materials**  **Testing**

**- Change** **Management**

**- Cost**  **Control**

**- Schedule**  **Control**

**- Construction** **Oversight Risk**  **Management**
**PMP 'f2.04.4.2.**  **The above**  **provisions of**  **the PMP**  **appear to**  **indicate that the**  **responsibility for**  **designing and building**  **the project**  **rests with**  **the Depa** **rtment of** **Transportation.**

**III. RESPONSI** **BILITIES OF**  **THE METROPOLITAN**  **COUNCIL**
**The PMP**  **recognizes that**  **the Metropolitan**  **Council is**  **designated by**  **state law**  **as the**  **operator of**  **the completed light rail**  **system. PMP**  **12.04.4.1. The**  **PMP also**  **identifies the**  **Metropolitan Council**  **as the**  **Federal Transit**  **Admin istration**  **grantee for**  **the project.**  **PMP !f2.04.4.** **l.**
**With respect**  **to specific**  **responsibilities, the**  **PMP states**  **that the**  **Metropolitan Council**  **is the**  **final decision maker**  **in all**  **aspects of**  **the project.**  **PMP 12.04.4.1.**  **Indeed, one**  **of the**  **responsibilities of** **the Metropolitan**  **Council is**  **to "approve**  **design and**  **constr uction**  **activities" for**  **the project.**  **PMP 12.04.4.1.**  **The PMP**  **also identifies**  **the Metropolitan**  **Council as**  **the "lead**  **agency" for**  **both design**  **and build**  **and program**  **management contracts.**  **In addition,**  **the PMP**  **states that**  **the Council**  **approves construction contracts.**  **PMP 'f2.05.l and** **')[2.05.2.2.**
**The coordination**  **of the**  **project is**  **the responsibility**  **of the**  **Project Management**  **Consultant. PMP**  **12.05.1. The**  **Project Management**  **Consultant's mission**  **is to**  **"achieve the**  **performance, schedule**  **and budget**  **objectives of**  **designing and**  **constructing the**  **Hiawatha Light**  **Rail Transit**  **Project." The**  **Project Management Consultant**  **reports to**  **the Metropolitan**  **Council. PMP** **<][2.05.1.**
**To assist**  **the Project**  **Management Consulta** **nt, the**  **chair of**  **the Metropolitan**  **Council and**  **the Commissioner**  **of the**  **Department of**  **Transportation created**  **the Hiawatha**  **Project Office**  **("HPO"). PMP** **<][2.05.2. The**  **function of**  **the HPO,**  **as set**  **forth in**  **the PMP,**  **is as**  **follows: Representative**  **Jim Rhodes**  **June 30,**  **2000 Page**  **4**
**The HPO**  **provides advice**  **from the**  **participating entities**  **relative to**  **the Commissioner's**  **responsibility under**  **a 1992 Minnesota**  **State Statute,**  **as amended**  **in 1998**  **and 1999**  **(Minnesota Statute**  **473.99-473.3998), to**  **design and**  **construct the**  **Hiawatha Light**  **Rail Transit**  **System.**
**PMP 1)[2.05.2.**  **It is**  **not clear**  **from the**  **PMP to**  **whom the**  **HPO provides**  **advice. However,**  **it appears**  **that such advice is**  **provided to**  **the Program**  **Management Consultant**  **(PMP «)(2.05.2)**  **who, as**  **noted above,**  **reports to**  **the M**  **et Council.** 
**The HPO**  **is divided**  **into units. PMP**  **12.05.2. Two**  **of those**  **units, the**  **Office of**  **Project Director**  **and Desi** **gn/Build Program**  **Management ,**  **are relevant**  **to this**  **discussion and**  **are described**  **below.**
**The Project Director Office**  **consists of**  **a Project**  **Director, Senior**  **Department of**  **Transportation and**  **Metropolitan Council** **representatives and**  **program managers**  **and staff.**  **PMP 'f2.05.2.2.**  **The Project**  **Director manages**  **all departments**  **within HPO**  **including Design**  **Build Program**  **Manageme nt,**  **Finance and**  **Administration, Public**  **Relations, Operations**  **and Maintenance**  **and Planning**  **and Environment.**  **PMP 'l[2.05.2.**  **The Project**  **Director reports**  **to the**  **Met Council**  **and is**  **specifically accountable**  **to the Metropolitan**  **Council for**  **the Design**  **and Construction**  **of the**  **Project. PMP**  **12.05.2.2. Among**  **the Project**  **Directq.f's principal responsibilities**  **are the**  **following:**

**• Prepare**  **Hiawatha Light**  **Rail Design**  **and Construction**  **Project Plan**  **for approval-­**  **Project definition,**  **implementation approaches,**  **schedule, budget.** 

**• Prepare**  **direct contract**  **formation and**  **administration process**  **fo r**  **construction contracts,**  **service contracts**  **and master**  **agreements (e.g.**  **with utilit**  **ies, municipalities,**  **etc.) for** **Metropolitan Council**  **approval.**

**• Interface**  **with contractors**  **and ot** **her third**  **parties as**  **required for**  **progress of**  **the project.** 

**• Manage**  **principles of**  **design, construction,**  **commissioning and·** **payments for**  **work and**  **services.**
**PMP '{2.05.2.2** 
**The Design/Build**  **Program Management**  **Unit of**  **HPO "provides**  **the expertise,**  **procedures and**  **staff resources**  **to manage**  **the Hiawatha**  **Light Rail Transit Design**  **Build contract**  **procurement and**  **administration for**  **the Metropolitan Council."**  **PMP <][2.05.2.4.**  **The Design**  **Build Program**  **Management Unit reports**  **to the**  **Project Director**  **and receives**  **policy, administrative**  **and technical**  **direction from**  **and through**  **the Project Director**  **and guidance on** **Representative Jim**  **Rhodes June**  **30, 2000**  **Page 5** 

**issues from**  **the Design**  **and Cons** **truction Committee.2**  **PMP <][2.05.2.4.**  **The Design/Build**  **Program Man** **agement Unit**  **manages the Design**  **Build Contractor**  **selection process**  **and administers**  **the selected**  **design build**  **contractor from inception**  **through contract**  **close out.**  **PMP 'l[2.05.2.4.**  **The responsibilities**  **of the**  **Design/Build Program**  **Management Unit**  **include the**  **following:**

**■ Develop**  **and maintain** **Design/Build Program Master**  **Budget and**  **Cost Estimate** 

**■ Develop**  **and maintain** **Design/Build Program**  **Master Schedule** 

**■ Procure**  **and administer** **design build**  **contractor**

**■ Establish**  **Procurement Standards** 

**■ Establish**  **Design Standards** 

**■ Establish**  **Construction Specifications** 

**■ Execute**  **Invoice Verifications**  **and Payments** 
**PMP '][2.05.2.4.** 
**The PMP states**  **that the**  **Design/Build Program**  **Manager ''was**  **created in**  **July 1998**  **to fulfill**  **MnDOT's role**  **of responsibility**  **for the**  **design and**  **construction of**  **the Light**  **Rail Transit**  **system as**  **described in** **legislation." PMP** **'][2.07.3.**
**It is**  **not clear**  **from the**  **PMP to**  **whom the**  **Design/Build Program**  **Manager reports. The**  **description of**  **the position**  **is included**  **in a**  **section entitled**  **":Minnesota Department**  **of Transportation** 

**-- Metro**  **Rail O** **ffi ce.** **" PMP**  **<j[ 2.07.** **3. However,**  **the Design/Build**  **Program Manager**  **also appears**  **to be**  **a part**  **of the**  **Design Build**  **Program Manag** **ement Unit,**  **which reports**  **to the**  **Project Director,**  **who reports**  **to the** **Metropolitan Council.** 
**The Attorney**  **General's Office**  **was provided**  **an organizational**  **chart that**  **schematically describes**  **the project**  **management relationships**  **between the**  **Me tropolitan**  **Council and**  **other entities**  **involved in**  **the project.**  **A copy**  **of the**  **organizational char** **t is**  **attached as**  **Exhibit 2.**  **According to**  **the chart,**  **the Commissioner**  **of the**  **Department of** **Transport ation**  **reports directly**  **to the**  **Metropolitan Council.**  **Design/Build Program**  **Management staff**  **report to**  **the Metropolitan**  **Council through**  **the Project** **Director of** **HPO.**
**There is**  **a dashed**  **line running**  **upwards from**  **Design Build**  **Program Management**  **to the**  **Department of** **Transportation. The**  **significance and**  **meaning of** **the dashed**  **line are unknown.** 

**2 The**  **Design and**  **Construction Committee**  **is responsible**  **for the**  **technical issues**  **regarding the**  **design and**  **construction of**  **the project.**  **The Committee**  **reports to**  **the Design/Build**  **Program Manager** **of HPO.**  **PMP <][2.06.2.** **Representative Jim**  **Rhode s**  **June 30** **, 2000 Page6** 



### LAW **AND ANALYSIS** 

**I. APPLICABLE**  **STATE LAW** 
**The statutes**  **addressing the**  **planning, design**  **and construction**  **of the**  **Hiawatha Light Rail**  **Project are**  **set forth in**  **Minn. Stat.**  **§§ 473.399-473.3997**  **(the "Enabling**  **Legislation"). Throughout**  **these sections,**  **the Metropolitan Council**  **and the**  **Department of** **Transportation have**  **statutorily prescribed**  **respon sibilitie** **s in**  **connection with**  **the project.** 
**With respect**  **to the Metropolitan**  **Council, Minn.**  **Stat. §**  **473.399 requires**  **the Council**  **to adopt**  **a plan**  **to ensure**  **that light**  **rail transit facilities**  **in the**  **metropolitan area**  **will be**  **acquired, developed,**  **owned and**  **capable of** **operation in**  **an efficient** **manner and**  **in coordination**  **with buses**  **and other**  **transpo rtation**  **modes. Regarding**  **this plan,**  **Minn. Stat. §**  **473.399, subd.**  **l(b) states**  **as follows:** 
**The light**  **rail transit**  **plan or**  **first phase**  **of the plan**  **required by**  **this section**  **must be**  **adopted by**  **the council before**  **the commissioner**  **of transportation**  **may begin**  **construction of**  **light rail**  **transit facilities.**  **Following adoption**  **of the**  **plan, the**  **commissioner of**  **transportation shall act**  **in conformity**  **with the**  **plan. The**  **commissioner shall prepare**  **or amend**  **the final**  **design plans**  **as necessary**  **to make**  **the plans**  **consistent with**  **the light** **rail transit**  **plan.**
**In connection**  **with the**  **preparation of**  **design plans,**  **Minn. Stat.**  **§ 473.3994,**  **subd. 7**  **states as**  **follows:**
**Before proceeding**  **with construction**  **of a**  **light rail transit facility,**  **the commissioner**  **[of transportation]**  **must submit**  **preliminary and final**  **design plans**  **to the**  **metropolitan council. The**  **council must**  **review the-**  **plans for**  **consistency with**  **the council's**  **development guide**  **and app!ove**  **the plans.** 
**Minn. Stat.**  **§ 473.3993,**  **subd. 3**  **goes on**  **to state:**  **The commissioner of transportation**  **may use**  **a design-build method**  **of project**  **development in**  **construction for**  **light rail**  **transit. Notwithstanding any**  **law to**  **the contrary,**  **the commissioner**  **may award**  **a design-build**  **contract as**  **a basis**  **for request** **for proposals**  **or requests**  **for quali** **fications with** **bids.**
**In addition,**  **in 1999,**  **the Legislature**  **appropriated to**  **the Commissioner**  **of Transportation**  **$60 million**  **"to match**  **federal money**  **to construct**  **light rail**  **transit in**  **the Hiawatha**  **A venue**  **corridor**

**... "**  **1999 Session Laws, ch.**  **240, art.**  **1. Upon completion of**  **construction of**  **light rail**  **transit facilities**  **and the commencement**  **of**
**reve nue**  **service using**  **the facilities,**  **the Metropolitan**  **Council is**  **directed to**  **operate the**  **facilities. Minn.**  **Stat. §**  **473.4051. Represen�ative**  **Jim Rhodes**  **June 30,**  **2000 Page7** 

**II. ANALYSIS** 
**Minnesota law**  **reflects the**  **desired goal of**  **an integrated**  **transportation system**  **and, to**  **that end,**  **requires the**  **Commissioner of**  **Transportation and**  **the Metropolitan**  **Council to**  **ensure that**  **the light**  **rail transit and commuter** **rail facilities**  **are plan** **ned, designed**  **and implemented**  **to move**  **commuters and**  **transit users**  **about the**  **metropolitan area,**  **and to**  **ensure that**  **rail transit lines will**  **interface with each other**  **and other** **transportation facilities and**  **services.**
**The statutory**  **roles of**  **the Metropolitan**  **Council and**  **the Commissioner**  **of Transportation**  **with regard**  **to the**  **light rail**  **transit project**  **directly relate to**  **one another.**  **The Council**  **has the**  **authority for**  **regional tran** **sit planning,**  **preliminary and**  **final light**  **rairtransit design**  **approval and**  **the operation**  **of the**  **light transit**  **system. The**  **Commissioner has**  **the authority**  **to plan,**  **design and**  **construct light**  **rail transit facilities**  **and use**  **design-build in**  **construction.**
**As noted**  **above, various**  **sections in**  **the PMP**  **indicate, consistent**  **with the**  **Enabling Legislation,**  **that it**  **is the**  **responsibility of**  **the Commissioner**  **of Transportation**  **to design**  **and build**  **the light**  **rail transit**  **system. These**  **include statements**  **acknowledging that**  **the Department**  **of Transportation**  **has responsibility**  **for the**  **design· and**  **construction of**  **the project**  **(PMP <][2.04.4.2)**  **and the**  **inclusion in** **the detailed**  **listing of** **Department res_ponsibilities**  **the duties**  **"design management,"**  **the "design/build**  **civil contract"**  **and the**  **managem ent**  **of the**  **design/build contract**  **(PMP ':lf2.0** **4.4 .2).**  **However, other**  **sections of**  **the PMP**  **appear jnconsistent**  **with those**  **sections to**  **the extent**  **they indicate**  **that the**  **Metropolitan Council**  **is directly**  **or indirectly**  **responsible for**  **the design**  **and construction**  **of the**  **project. These**  **include. the**  **statement that**  **the Department**  **of Transportation's**  **role in**  **the project**  **is to**  **serve as**  **an "agent"**  **of the**  **Metropolitan Council**  **(PMP <jf2.01);**  **the statement**  **that the**  **Metropolitan Council**  **is the**  **"lead agency** **.._ for**  **design and**  **build contracts**  **(PMP 2.04.4.1);**  **the.fact that**  **the Project**  **Manager, whose**  **duties include**  **achieving the**  **performance, schedule**  **and budget**  **9bjectives of**  **deigning and** **constructing the**  **project, reports**  **directly to**  **the Metropolitan** **Council (PMP**  **'12.05.1);.and the**  **accounta bility** **of the**  **Design/Build Program** **Management Unit** **to the** **Metropolitan Council.**  **(PMP CJ[2.05.2.4).** **3**
**On April**  **13, 2000,**  **the law**  **firm of**  **Dorsey &**  **Whitney provi9-ed**  **to the**  **Metropolitan Council**  **a legal**  **opinion that**  **the allocation**  **of responsibilities**  **and control**  **between the**  **Met Council**  **and the**  **Commissioner as**  **set forth**  **in the**  **PMP is**  **authorized by**  **applicable state**  **law (the**  **''DW Opinion"). A**  **copy of** **the DW**  **Opinion is**  **attached as**  **Exhibit 3.** 

**The PMP dated April 14,**  **2000 which w** **as reviewed**  **by the**  **Attorney General's**  **Office is**  **a redlined,**  **updated version**  **of a**  **PMP dated**  **March, 2000.**  **Interestingly, the**  **March, 2000**  **and prior**  **versions of**  **the PMP indicated**  **that the**  **Design/Build Program**  **Management Unit managed**  **the design/build**  **contract for**  **the Department**  **of Transportation.**  **The words**  **''Department of Transportation"**  **are stricken in**  **the April**  **14, 2000**  **version and the**  **words "Metropolitan**  **Council" are inserted. (PMP** **<][2.05.2.4) Similar** **redlined changes**  **are contained elsewhere** **in the**  **PMP. 3** **Representative Jim**  **Rhodes June**  **30, 2000**  **Page 8** 

**Th e**  **DW Opinion**  **states that**  **while the**  **PMP "might**  **appear to**  **give the**  **Council a greater**  **role in**  **the management**  **and control of the**  **design and**  **construction process**  **than may**  **have been**  **anticipated in**  **the [Enabling**  **Legislation]**
**... ,**  **that role**  **is a**  **reasonable and**  **legitimate means**  **of im** **plementing the**  **final decision-making**  **authority "**  **which Minnesota**  **law grants**  **to the Council.** 
**Certain provisions**  **in the**  **PMP do**  **appear to**  **give the Metropolitan**  **Council a**  **greater role**  **in the**  **design and**  **construction process**  **than is**  **set forth**  **in Minnesota**  **law. It**  **is not**  **clear, however,**  **to what**  **"final decision-making**  **authority" of**  **the Council**  **the DW**  **Opinion refers**  **when it**  **states that**  **such authority**  **has been**  **granted to**  **the Council**  **and justifies**  **the level**  **of involvement**  **of the**  **Council which**  **appears in**  **the PMP.**  **The DW**  **Opinion provides**  **no analysis**  **or citation**  **as to**  **any specific**  **statutory authority**  **for the**  **role of**  **the Metropolitan Council**  **as described**  **in the**  **PMP which,**  **Dorsey &**  **Whitney acknowledges, may**  **be greater**  **than that**  **set forth**  **in Minnesota**  **law.**
**The DW**  **Opinion also states that**  **Mi nn.**  **Stat. §**  **471.59 provides**  **a basis**  **for two**  **or more**  **governmental units,**  **by agreement,**  **to jointly**  **and cooperatively**  **exercise any**  **power common**  **to the**  **units or**  **any similar**  **powers. The**  **DW Opinion**  **intimates that**  **the joint**  **powers statute**  **applies to**  **the light**  **rail project.**  **Indeed, the** **DW Opinion**  **states: The agreement**  **which will**  **implement this**  **structure also**  **constitutes an**  **agreement whereby**  **the Council**  **and MnDOT**  **are jointly agreeing**  **to exercise**  **the powers**  **granted to**  **them by**  **the Minnesota Legislature**  **to accomplish**  **the pmposes**  **set forth**  **in the**  **[Enabling Legislation]**  **by the**  **method set**  **forth in**  **the Project**  **Management Plan** 

**. The**  **Attorney General's**  **Office is**  **not aw** **ar e**  **of any** **joint powers**  **agreement that**  **has been**  **entered into**  **between the Metropolitan**  **Council and**  **the Department**  **of Transportation.**  **As stated**  **in the**  **DW Opinion,**  **Minn. Stat.**  **§ 471.59**  **provides the authority**  **for two**  **or more**  **governmental units,**  **by agreement,**  **to jointly**  **and cooperatively**  **exercise any**  **power common**  **to both**  **units or similar**  **powers. Minn.**  **Stat. §**  **471.59 was**  **passed in**  **194 3**  **and is**  **based on**  **a California**  **statute. Kaufman**  **v. Swift**  **Co., 20**  **NW2d 34,**  **37 (Minn.**  **1947). The**  **purpose of**  **the California**  **law has**  **been described as**  **follows:**
**The Act**  **"mean[s] that**  **cities may**  **contract in**  **effect to**  **delegate to**  **one of**  **their number**  **[or a**  **separate agency**  **created by** **the agreement]**  **the exercise**  **of a**  **power or**  **the performance**  **of an**  **act in** **behalf of**  **all of them,**  **and which**  **each independently**  **could have**  **exercised or**  **performed**

**... It**  **grants no**  **new powers**  **but merely** **.sets up a**  **new procedure**  **for the**  **exercise of** **existing powers."** 
**Los Angeles**  **v. South**  **Gate, 51**  **Cal. Rptr.2d**  **878, 883**  **(1997), citing The**  **City of**  **Oakland**
**v. Williams**  **15 Cal.2d**  **542, 549,**  **103 P.2d**  **16 8**  **(1940)**

**. Here,**  **not all**  **of the**  **statutorily prescribed**  **powers and**  **duties of**  **the Metropolitan**  **Council and**  **the Department**  **of Transportation**  **are common.**  **As a**  **result, the**  **Department of**  **Transportation and**  **the Metropolitan**  **Council may**  **enter into**  **a cooperative**  **agreement, but**  **that Representative**  **Jim Rhodes June**  **30, 2000**  **Page 9** 
**agreement must**  **reserve to**  **the Commissioner** **of Transportation**  **the authority**  **delegated to**  **him by**  **statute, such**  **as the**  **authority to**  **award the**  **design-build contract.**
**Statements in**  **the PMP**  **can be**  **interpreted in**  **more than**  **one way**  **with regard**  **to the**  **respective responsib** **ilities of**  **the Metropolitan**  **Council and**  **the Commissioner**  **of Transportation**  **pertaining to**  **the design**  **and construction**  **of the**  **light raii**  **transit system.**  **Accordingly, the**  **determination as**  **to whether**  **the PMP**  **complies with**  **state law**  **is dependent**  **upon the**  **PMP's interpretation**  **and implementation**  **by the**  **Metropolitan Council**  **and the**  **Commissioner. 4**  **To the**  **extent that**  **the terms**  **of the**  **PMP are**  **implemented in**  **a manner consistent with the**  **Enabling Legislation,**  **it is**  **the opinion** **of this**  **Office that**  **the PMP**  **conforms with**  **Minnesota law.**  

### CONCLUSION

**The relevant legal**  **standards and**  **analysis regarding**  **this matter**  **may be**  **summarized as**  **follows:**
**1. The**  **Metropolitan Council**  **has the**  **authority to**  **adopt a**  **plan to**  **ensure that light rail**  **transit facilities**  **are developed**  **and owned**  **in coordination**  **with other**  **means of**  **transportation. Minn.**  **Stat. §**  **473.399, subd.**  **1..**
**2. The**  **Co mmissioner**  **of Transportation**  **must submit**  **preliminary and**  **final design**  **plans to**  **the Metropolitan** **Council for** **approval. Minn. Stat.**  **§ 473.3994,**  **subd. 7.** 
**3. The**  **Commissioner of** **Transportation has**  **the .authority**  **to award**  **the design-build**  **contract. Minn.**  **Stat. §**  **473.3993, subd.**  **3.**
**4. A**  **governmental unit**  **generally cannot**  **delegate its**  **discretionary authority**  **to another unit** **unless that unit** **has common**  **authority. Minn.**  **Stat. �**  **471.59. 5.**  **The Commissioner**  **of Transportation**  **and the**  **Metropolitan Council**  **do not**  **have**
**common authority**  **to design**  **and construct**  **the light**  **rail transit**  **system. The**  **Commissioner of** 

**4 An** **initial PMP**  **was apparently**  **drafted and** **submitted to**  **the Ff A**  **in September,**  **1999. However,**  **the Attorney**  **General's Office**  **was not**  **consulted or** **requested to**  **review any**  **part of** **the PMP**  **until April**  **10, 2000** 

**-- only**  **21 days**  **before the**  **May 1,**  **2000 deadline**  **for FfA**  **approval established**  **by 1999** **Minn. Laws,**  **ch. 240,**  **art. 1.**  **On April**  **10th, the**  **Attorney General's**  **Office received**  **a copy**  **of Chapter**  **2 of**  **the PMP**  **which had**  **been filed**  **with the**  **Ff A on**  **or about**  **April 6,**  **2000. After**  **it received**  **and reviewed**  **the PMP,**  **this Office**  **contacted representatives**  **of the**  **Metropolitan Council,**  **the Department**  **of Transportation,**  **the Governor's**  **Office and the**  **Ff A to**  **express concerns**  **about ambi** **guities in**  **the PMP.**  **On April**  **11, 2000,**  **this Office requested**  **Pat Riley,**  **the Deputy**  **Administrator of**  **the Ff** **A, to**  **set up**  **a meeting**  **among State**  **repre sentatives**  **and Fr A**  **attorneys to**  **clarify and**  **resolve ambiguities**  **between the**  **PMP and**  **Minnesota law.**  **The meeting** 
**was scheduled**  **for April**  **13, 2000**  **in Chicago.**  **After scheduling**  **the meeting,**  **the Metropolitan**  **Council obtained the**  **DW Opinion**  **and cancelled**  **the Chicago**  **meeting. The**  **Attorney General's.**  **Office has**  **had no further involvement**  **with the**  **PMP or**  **the FfA**  **since that time.** **Representative Jim**  **Rhodes June**  **30, 2000**  **Page 10**  **Transportation has**  **final authority**  **to award the**  **design-build contract.**  **The Commissioner**  **may consult**  **with the**  **Metropolitan Council,**  **or any**  **other party he**  **deems appropriate,**  **concerning the**  **award of**  **the contract.**  **6. The**  **Commissioner of**  **Transportation is**  **responsible for**  **the construction**  **of the**  **project and**  **must oversee**  **the construction**  **to ensure**  **compliance with** **bid specifications.** 
**7. The**  **Metropolitan Council**  **may monitor**  **the actions**  **of the**  **Commissioner of**  **Transportation to**  **ensure that**  **the construction**  **of the**  **light rail**  **facilities complies**  **with the**  **plans submitted**  **by the**  **Commissioner pursuant**  **to Minn.**  **Stat. §**  **473.3994, subd.**  **7.**
**The PMP**  **is ambiguous**  **and could**  **have been**  **clarified to**  **clearly meet**  **the parameters**  **established by**  **Minnesota law.**  **Rather than**  **clarifying these**  **ambiguities with**  **the Ff A**  **in April,**  **2000, the**  **Metropolitan Council**  **chose to**  **obtain the**  **OW Opinion**  **and cancelled**  **the meeting.** **5 Because**  **of the**  **ambigui ties,**  **we believe**  **that compliance with**  **Minnesota law**  **depends upon**  **the manner**  **in which the**  **PMP is**  **implemented. We**  **believe that,**  **as long**  **as the**  **Commissioner issues**  **the RFP,**  **selects the**  **contractor, awards**  **the contl]lct**  **and thereafter**  **carries out**  **the respo** **nsibilities of**  **the governmental**  **unit that**  **has**
**.. awarded**  **the contract, the**  **PMP is**  **consistent with**  **Minnesota law,** 
**Very truly**  **yours,**

**MIKE HATCH**  **Attorney General**  **State of** **Minnesota**

**Enclosures AG:**  **387987,v. 01** 

**5 See**  **footnote 4,**  **supra.'**