How the reimbursement of the RTA's expenditure was intended to apply was not spelt out. There were no explicit directions on the use of the BCF, or any surplus or deficit from the upfront payment. This arose from not having the structure of the bidding model spelt out clearly and approved by the appropriate level of government. The intent to use the Development Fee of $54 million from the upfront payment for the RTA's development costs was clear from the start, although these costs were also not well defined.