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international olympic committee candidature acceptance procedure xxi olympic winter games in 2010 report by the ioc candidature acceptance working group to the executive board of the international olympic committee lausanne 11 july 2002

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note to the reader the original version of the present report was drafted in english this is the version that was approved by all the members of the working group consequently in the event of a discrepancy between the french and english texts of the present report the english text shall be deemed authentic © copyright ioc all rights reserved

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table of contents page introduction method of analysis assessment 1 2 3 4 5 6 7 8 9 10 11 government support and public opinion general infrastructure sports venues olympic village environmental conditions and impact accommodation transport security experience from past sports events finance general concept 1 5 8 9 15 23 29 35 41 45 51 55 57 59 61 conclusion © copyright ioc all rights reserved

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introduction the xxi olympic winter games will be celebrated in 2010 hereafter the 2010 olympic winter games eight cities hereafter the applicant cities have applied to become candidate cities to host the 2010 olympic winter games namely in the order of drawing of lots vancouver can sarajevo bih jaca esp salzburg aut pyeongchang kor harbin chn bern sui andorra la vella and the recommendations adopted by the 110th ioc session in december 1999 in lausanne resulted in fundamental changes regarding the procedure leading to the election of the host city for any olympic games such changes have been incorporated into the olympic charter more particularly bye-law to rule 37 pursuant to such provisions a candidature acceptance procedure has been adopted this first or preliminary phase is led by the ioc executive board which will decide on 28 29 august 2002 in lausanne which cities among the applicant cities will be accepted as candidate cities the ioc executive board has instructed the ioc administration to prepare and send to all applicant cities a questionnaire for cities applying to become candidate cities to host the xxi olympic winter games in 2010 hereafter the questionnaire review all answers and other related information received from all applicant cities and to establish for the attention of the ioc executive board a report assessing the ability of each applicant city ­ including its country ­ to host organise and stage quality high-level international multisports events and more particularly the olympic winter games it will be up to the ioc executive board to determine which cities shall be accepted as candidate cities the purpose of this report is to assist the ioc executive board in the preparation of its decision section 1.2.3 of the candidature acceptance procedure provides the following the ioc may appoint experts to assess the cities including experts from the ifs the nocs and the ioc athletes commission if so requested the applicant cities shall receive such experts in their respective cities and shall respond to their questions the above-mentioned experts shall be at the disposal of the ioc executive board for the performance of their duties in order to perform its task and prepare this report the ioc administration pursuant to section 1.2.3 of the candidature acceptance procedure has commissioned a certain number of studies and appointed a number of experts including experts from the ifs the nocs and the ioc athletes commission and established an ioc candidature © copyright ioc all rights reserved

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acceptance working group hereafter the working group composed of the following persons in alphabetic order mr peter bayer if representative secretary general of the international biathlon union transport expert professor of transportation federal institute of technology lausanne expert on the 2000 2002 2004 2006 and 2008 ioc coordination commissions general director savoy tourist agency sports director albertville 1992 olympic winter games organising committee member of the ioc evaluation commissions for 2002 and 2006 member of the ioc 2006 coordination commission noc representative secretary general of the australian olympic committee inc general manager of sport sydney 2000 olympic games organising committee member of the ioc evaluation commission for 2008 ioc director of sports olympic games coordination and relations with international federations environment expert advisor to the 1998 2000 2002 2004 2006 and 2008 ioc coordination commissions member of the ioc evaluation commissions for 2004 and 2006 ioc director of finance and administration noc representative president of the japanese olympic committee sports director of the nagano 1998 olympic winter games senior vice president of venues salt lake city 2002 olympic winter games organizing committee ioc director of technology ioc athletes commission representative professor philippe bovy mr rémy charmetant mr bob elphinston mr gilbert felli mr olav myrholt mr thierry sprunger mr tsunekazu takeda mr grant thomas mr philippe verveer ms pernilla wiberg © copyright ioc all rights reserved

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all eight applicant cities replied to the ioc s questionnaire within the deadline set by the ioc 31 may 2002 all members of the working group received all documentation sent by each applicant city external expertise the following outside experts/organisations have been instructed to undertake specific research and have presented reports to the working group in the following areas · idate audiovisual and telecommunications institute bp 44167 34092 montpellier mr santiago de sicart telecommunications · security director of security at the games of the xxv olympiad in barcelona in 1992 security expert on the 2000 2002 2004 and 2006 ioc coordination commissions financial aspects general infrastructure transport · · moody s rating agency federal institute of technology in lausanne institute of transportation and planning transport and environmental design unit epfl 1005 lausanne mori mori house 79-81 borough road london se1 1fy decision matrix decision software development 77 havelock street ottawa · public opinion · decision software the working group has verified that all above-mentioned experts are not commissioned by any applicant city their studies and reports have been performed and submitted in full independence the ioc executive board decided at its meeting in kuala lumpur in may 2002 that the swiss national members of the working group would not take part in any vote concerning the swiss applicant city of bern © copyright ioc all rights reserved

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decision matrix decision matrix was formed in 1983 for the purpose of developing decision software catering to large and very specific decision problems in organisations the decision matrix software programme uses modern graphic-user interfaces to display results in an easily interpretable fashion decision matrix are experts in the development of decision models in the area of human resources purchasing and acquisitions strategic planning restructuring of companies and technology forecasting the foremost users of these programmes are large corporations in north america and europe government agencies and nato panels for the optimisation of new military hardware and strategies this programme was successfully used by the international olympic committee for the first time in the assessment of the 2008 applicant cities working group meeting the working group met in lausanne on 8 11 july 2002 and following presentations made by experts and ioc directors decided to assess the applicant cities on the basis of a number of technical assessment criteria and weightings which were pre-established by the ioc executive board in february and may 2002 the weightings vary between 1 and 5 5 being the most important weighting 1 government support and public opinion 3 2 general infrastructure 5 3 sports venues 4 4 olympic village 4 5 environmental conditions and impact 3 6 accommodation 5 7 transport 3 8 security 4 3 9 experience from past sports events 2 10 finance 3 2 11 general concept 3 in carrying out its assessment the working group unanimously decided to modify the weightings of the following two criteria security and finance the new weightings can be found in the above table in parentheses and are as follows ­ security 3 finance 2 these adjustments were made on the basis that the information requested in the ioc candidature acceptance questionnaire is of a general nature and does not commit the applicant city or its authorities as such a higher weighting at this stage of the bid process is not justified © copyright ioc all rights reserved

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the working group has limited itself to the examination of technical and factual data provided by the applicant cities and the reports provided by external experts the assessment has also taken into consideration the quality of the information provided by the applicant cities the working group has not taken into account any other considerations or criteria such as the olympic movement s general policy or geopolitical factors such considerations or criteria belong to the sphere of authority of the ioc executive board alone method of analysis in view of the importance of the assessment of applicant cities the executive board considered that the assessment of applicant cities in phase i should be backed up by a software decision-making programme decision matrix was selected from amongst a number of options to assist with the assessment of the ten applicant cities for 2008 based on its experience with projects of a similar nature following the success of this experience in 2008 the executive board decided to repeat the procedure with the 2010 applicant cities in consultation with the ioc decision matrix developed the olymplogic decision model based on an already proven decision model optionlogic which computes the best option amongst a number of contenders the olymplogic programme enables a comparison of applicant cities on the basis of a number of ioc-specific criteria © copyright ioc all rights reserved

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mathematical background real life decisions are often based on incomplete information and subjective criteria to describe the situational parameters at hand and their inexact numerical estimates this is also the case for the selection of future olympic sites thus it is imperative to use socalled fuzzy logic since the assessment criteria concerning for example future plans and financing are inherently uncertain olymplogic caters to this uncertainty and permits the user to input fuzzy grades for subjective criteria criteria for which information is incomplete or criteria for which only estimates can be given a fuzzy number is given as an interval comprising a minimum and maximum grade the more uncertain a criterion grade the wider the span between the minimum and maximum grade for example the concept proposal of the olympic village of one city may be rated as 6.0 to 9.0 on a scale of 10 while another city might obtain the specific number of 6.0 where the minimum and maximum numbers are identical clearly in the case of the latter city the assessor was absolutely certain in the judgement of the concept as described by that city with all village components given a medium rating in contrast the former city proposed an olympic village with some elements of medium value while others were excellent numerous literature exists to describe the mathematics of fuzzy logic for example in kacprzyk1 and böhme2 most traditional decision models such as the widely used average weighted sum cannot be used for the ioc s assessment of applicant cities as these methods may mask some weak grades with strong grades when combining them to an average the result could be misleading since the combined average of a city may be acceptable while there exists a hidden unacceptable weakness in a criterion grade olymplogic overcomes this problem by using the entropy principle which simultaneously involves computing the respective performance of applicant cities for all criteria in relation to one another the result is that the entropy considers the volatility turbulence or unevenness of the grades thus preventing the masking of weak grades and leading to more accurate results the entropy principle was formulated by h.l.f von helmholtz a german physicist in 1847 and is the underlying basis by which the universe functions in olymplogic the entropy principle is employed to measure the turbulence of the scores an evaluator gives to the criteria for assessing applicant cities for example if there are a number of criteria by which an applicant city is evaluated and if the grades fluctuate widely between 1 and 10 the turbulence is high and thus there is a high degree of uncertainty in this applicant in other words the entropy is a measure of trust in the capability of an applicant city to host the olympic games many references describe the use of entropy in decision making as for example in hwang and yoon3 1 2 kacprzyk j multistage decision-making under fuzziness verlag tÜf rheinland köln 1983 böhme g fuzzy logik springer verlag berlin 1993 3 hwang c yoon k multiple attribute decision making section 5.3 entropy method springer verlag new york 1981 © copyright ioc all rights reserved

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evaluation procedure olymplogic requires a number of steps to evaluate applicant cities 1 creation of a list of criteria to describe the readiness of a city to host the 2010 olympic winter games 2 not all criteria are of the same importance or weight to account for this weighting factors have been given 3 establishment of the ioc benchmark this benchmark constitutes the minimum desirable grade for any criterion by the ioc the working group set the ioc benchmark at 6.0 4 assessment of the applicant cities through the set of criteria results fuzzy grades produce fuzzy results expressed by performance bars of varying length a long performance bar indicates that the underlying grades of a particular city were very fuzzy there are three basic interpretations of the results 1 the entire performance bar lies inside the ioc benchmark such a city is proposed by the working group as a possible candidate city for the 2010 olympic winter games 2 the entire performance bar lies outside the ioc benchmark in this respect the working group feels that such city is not ready at this point to host the olympic winter games 3 part of a performance bar lies inside the ioc benchmark while the rest of the bar is outside the interpretation of such a scenario is as follows if everything proposed by the applicant city was to work perfectly the city could be considered as a possible candidate city if on the other hand this was not the case the city would perform at the lower end of the performance bar and thus would not be ready to host the 2010 olympic winter games © copyright ioc all rights reserved

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assessment below are to be found the results of the working group s assessment of each of the eight applicant cities according to the technical criteria the results of the assessment are two-fold textual and graphical the textual part comprises a brief introduction of how the working group approached the criteria in question as well as an explanation as to how and why the relevant grades were awarded to the eight cities the graphs at the end of the report show the position of each of the eight applicant cities for each criterion in relation to the ioc benchmark and in relation to each other definition of terminology used in the report benchmark feasibility minimum required grade on a scale of 0 to 10 the working group established the benchmark at 6.0 probability of a project being achieved in the proposed timeframe taking into account financing political issues time location speed of growth of the city/region and post-olympic use a factor value of 0.1 to 1.0 applicable to the grades can penalise the project to which it is attributed attribute of a value used to characterise a grade result or number in the format of an interval comprising a minimum and maximum grade result or number value on a scale of 0 to 10 attributed by the working group to the main and sub-criteria for each applicant city reflecting the assessment of the working group quality number location concept etc criteria defined in relation to the ioc s questionnaire to applicant cities and on which the assessment of cities is based the working group has attributed a grade of 1 to10 to each criterion sub-division of a criterion by the working group in order to facilitate the assessment importance given by the working group to a main or subcriterion in relation to other criteria or sub-criteria a weighting with a value of 1 to 5 is given to each main criterion a weighting with a value of 1 to 3 is given to certain subcriteria where judged necessary by the working group fuzzy grade main criteria sub-criteria weighting © copyright ioc all rights reserved

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1 government support and public opinion weighting 3 introduction in assessing this criteria the working group also took into consideration the information provided by the applicant cities on legal aspects in terms of government support national regional and local the following issues were assessed · · · · general level of political support commitments given regarding services to be provided to the ocog at no cost funding of general and sports infrastructure commitment to financially underwrite the games as regards public opinion the working group used the data provided in the research study conducted for the ioc by mori as well as the percentage of support indicated by the applicant cities the working group then assessed the cities on the basis of the three following sub-criteria and weightings 1 government support commitment financial aspects 2 legal aspects 3 public opinion total weight 0.7 0.15 0.15 1 vancouver the federal government of canada the government of british columbia the city of vancouver and the resort municipality of whistler support the bid the canadian government has committed to fund the sports venue infrastructure and related endowment costs in partnership with the government of british columbia and the communities of vancouver and whistler commitments will be made to provide government services including security customs and immigration at no cost to the ocog © copyright ioc all rights reserved

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the government of british columbia has agreed to indemnify the city of vancouver and the resort municipality of whistler against any costs arising from commitments and obligations they make related to the vancouver bid or to the ocog the government of british columbia has committed funds for legacy programmes the canadian government has tabled a bill on physical activity and sport this bill also establishes an alternative sport dispute resolution centre in a country-wide poll organised by the applicant city 80 of people expressed their support for the project the results of the mori poll organised in vancouver and whistler show 62 support sarajevo the presidency of bosnia and herzegovina has given its full support and guarantee to the games the government of sarajevo canton the leaders of sarajevo city serbian sarajevo and other municipalities provide similar support the government authorities are willing to ensure all necessary security medical customs and other services all public facilities will be accessible at no cost or at a rental cost to be determined by the ioc part of the financing of the necessary infrastructure development the working group expresses some reserve about the financial capacity of the public authorities the implementation of new legislation would be required in a country-wide poll organised by the applicant city 93.2 of people expressed their support for the project the results of the mori poll organised in sarajevo show 95 support jaca the jaca 2010 bid committee has obtained the support of the spanish government the government of aragon huesca provincial council jaca city council and other municipalities involved in the olympic project the above authorities have made commitments to provide the future organising committee with the necessary revenue to function from the constitution of the ocog to the receipt of revenues assume any possible deficit generated by the organisation of the games © copyright ioc all rights reserved

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supply all security health and customs services free of charge make all public facilities available at no expense or at a rental value approved by the ioc implement finance and promote the development of infrastructure projects required for the olympic games in addition to the general legal framework the government has the possibility to approve further financial and tax regulations designed to encourage public and private financing in a poll organised by the applicant city in the alto aragon region 85 of persons were aware that jaca was bidding for the 2010 olympic winter games and 8 out of 10 persons were in favour of the project the results of the mori poll organised in and around jaca show 74 support salzburg the bid committee has received formal endorsement from the austrian government the state of salzburg the city of salzburg and the city of kitzbühel also fully support the bid the austrian federal government has agreed in principle to guarantee and underwrite the operation of a future organising committee the various governments and municipalities have agreed to build and provide the necessary venues and related infrastructure to the ocog an agreement between the government of austria and the states of salzburg and tyrol is being prepared to provide security immigration medical and other related government services free of charge to the ocog in a poll organised by the applicant city area not specified 83 of persons viewed the olympic winter games as being important for the region the results of the mori poll organised in salzburg show 68 support pyeongchang the national government of korea supports the bid and will provide all forms of governmental guarantees commitments and administrative assistance necessary for the games should pyeongchang be elected as the host city the korean national assembly will enact special laws to provide any government level assistance required the city of pyeongchang and gangwon province are taking steps to enact relevant laws and regulations in cooperation with the national government resolutions passed and legislation enacted at all levels of government will be legally binding © copyright ioc all rights reserved

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the national and regional authorities will provide the financial assistance needed to host the games the national government is expected to bear 50 of the public project costs the regional authorities will cover the remaining 50 in a poll organised by the applicant city in pyeongchang 96.8 of people expressed their support for the project the results of the mori poll organised in and around pyeongchang show 78 support harbin the chinese government heilongjiang provincial government and harbin municipal government support the bid and state that they will provide financial and other assistance to hosting the games the public authorities will provide all required infrastructure the following services will be provided free of charge to the ocog health care security customs entry and exit inspections and quarantine public sports venues and facilities will be made available free of charge or rented at a cost to be pre-approved by the ioc in the event of a deficit the ministry of finance the finance department of heilongjiang province and the finance bureau of harbin undertake to pay the balance in a poll organised by the applicant city in the city of harbin 96.3 of people expressed their support for the project the results of the mori poll also organised in harbin show the same results 96 support bern the swiss confederation and the cantons and districts with olympic venues have all given written confirmation of their support for the bid the budget provides for a financial contribution of usd 78 million from government authorities for investment in permanent sports facilities decisions concerning the allocation of this financial support will be taken between august and december 2002 the communes or third parties will finance the majority of sports installations in a poll organised by the applicant city in the city of bern and in the cantons with olympic venues 67 of people expressed their support for switzerland being a candidate to host the olympic winter games the results of the mori poll organised in the canton of bern show 42 support © copyright ioc all rights reserved

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