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Pg 1 of Report PR-37-09
COMMUNITY SERVICES DIVISION
Parks and Recreation Department
TO: Chair and Members of the Community and Corporate Services Committee
SUBJECT: ALTON COMMUNITY CENTRE – PREFERRED OPTION
Report Number: PR-37-09 Report Date: June 10, 2009
Author(s): Jim Seferiades Date to Committee: June 24, 2009
Telephone: 905 335-7600 Ext. 7785 Date to Council: July 6, 2009
Ward(s) Affected: 1 2 3 4 5 6 All File Number(s): 900-01
APPROVALS:
___________________
Department Head
___________________
General Manager
__________________
City Manager
To be completed by the Clerks Department
Committee
Disposition &
Comments
01– Approved 02 – Not Approved 03 – As Amended 04 – Referred 05 – Deferred 06 – Received & Filed 07 – Withdrawn
Council
Disposition &
Comments
01– Approved 02 – Not Approved 03 – As Amended 04 – Referred 05 – Deferred 06 – Received & Filed 07 – Withdrawn
1.0 RECOMMENDATION:
THAT Option 1a recommending an integrated high school, public library and community centre
complex on the Halton District School Board property at the northwest corner of Dundas Street
and Tim Dobbie Drive be approved, as outlined in Report PR-37-09 dated June 10, 2009; and
THAT the Memorandum of Understanding attached as Appendix F to Report PR-37-09 be
approved as a framework document outlining various principles and capturing the various
interests, requirements and responsibilities of the parties being the City, Halton District School
Board and the Burlington Public Library in respect of this initiative; and
Pg 2 of Report PR-37-09
THAT funding identified in the 2010 capital forecast for the Alton Community Centre and
Northeast Library be pre-approved as amended and outlined in Report PR-37-09; and
THAT the strategy addressing the funding gap for the project as outlined in Report PR-37-09 be
approved; and
THAT staff be authorized to continue to work with the Halton District School Board and the
Burlington Public Library on the detailed design of the facility; and
THAT the Director of Parks and Recreation be directed to work with School and Library
officials to develop an agreement, and report back in September/October 2009; and
THAT the Director of Parks and Recreation be authorized to immediately issue an RFP for the
detailed design of Norton Park with scheduled construction in 2010; and
THAT the Manager of Realty Services be directed to report back with strategies on the
disposition of the 3 hectare City-owned property on the southeast corner of Walkers Line and
Highway 407, so as to optimize the return on this asset; and
THAT the Director of Parks and Recreation report back on the results and recommendations of
the Request for Proposal for capital joint venture partners in connection with the Alton
Community Centre by September 2009; and
THAT the Director of Parks and Recreation notify the Halton District School Board and the
Burlington Public Library of the City’s decision to move forward with this partnered initiative.
EXECUTIVE SUMMARY: N/A
2.0 PURPOSE:
The purpose of this report is to:
Provide an analysis of the various options for the development of the future planned
Alton Community Centre and recommend a preferred direction for the project
Seek approval of a Memorandum of Understanding providing a framework for the
preferred option identifying partners, principles, interests, responsibilities and
implementation requirements
Provide an analysis of cost and funding implications for the preferred option
Provide a high level timeline for the implementation of the preferred option
3.0 BACKGROUND AND RELATIONSHIP TO STRATEGIC PLAN:
The Alton Community Centre and Northeast Library are key initiatives planned to respond to
growth in north Burlington and an increased demand for recreation and library services. Both
initiatives have funding identified over the next three years in the City’s approved 10-Year
Capital Budget and Forecast.
Pg 3 of Report PR-37-09
As is typical for initiatives of this magnitude, a feasibility study was launched in October 2008 to
address key strategic considerations such as site selection, programmatic scope, functional
requirements, building and site components, partnership opportunities, estimated costs, funding
sources and any potential community impacts. Running in parallel with the feasibility study is
the City’s Parks, Recreation and Cultural Assets Master Plan which has provided important
strategic inputs related to community need, trends, and broader service delivery dimensions to
help shape the direction and vision for this initiative.
This report presents the findings and recommendations of the feasibility study. The following
summarizes various pertinent strategic directions and Council resolutions related to the initiative.
Pertinent Future Focus VII – Strategic Plan Directions 2007-2010
Table 1 - Future Focus VII Strategic Directions
Focus Area: Responsive Community
Goals: Burlington is an inclusive and caring community.
City and community services, programs, parks and facilities contribute directly
to the exceptional quality of life enjoyed by Burlington citizens.
Strategic
Actions:
Ensure city services, programs and facilities are available to all members of the
community.
Actively support and build capacity within the volunteer sector of the
community.
Support and encourage health, wellness and active living by all residents.
Support and celebrate the arts, culture and heritage assets and resources of the
community, including international relationships.
Initiatives: Explore joint partnership opportunities for the development of recreation
venues including centres of excellence for sport.
Build community capacity and support the ongoing development of the arts
and cultural sector utilizing the Cultural Strategy and Public Art Plan to set
priorities.
Continue to support the Burlington Public Library and its emphasis on
enhancing literacy, learning and community connections.
Continue to support the Burlington Art Centre with an emphasis on the
development of cultural tourism and programming
Pertinent Council Resolutions and Staff Directions
PR-14-09
(March 9, 2009)
Receipt of Phase 1 Situational Analysis Executive Summary Report for the
Parks, Recreation and Cultural Assets Master Plan and approval of next steps
and revised timeline.
THAT the City of Burlington Parks, Recreation and Cultural Assets Master
Plan - Phase 1 Situational Analysis Executive Summary Report dated
February 2009, prepared by F.J. Galloway Associates Inc. and attached as
Appendix A to Parks & Recreation Report PR-14-09, dated February 12,
2009, be received; and
Pg 4 of Report PR-37-09
THAT the options recommended for further development and investigation
related to the Alton Community Centre, Northeast Library, Sherwood Forest
Park and Mountainside Park Feasibility Studies as outlined in Parks and
Recreation Department Report PR-14-09, dated February 12, 2009, be
endorsed subject to the approval of recommendations contained in companion
Parks and Recreation Department Report PR-12-09, dated February 12, 2009;
and
THAT the revised project timeline outlined in this report be approved,
recognizing the scope and complexity of the integrated planning initiatives.
PR-12-09
(March 9, 2009)
Approval to consider alternate sites for the Alton Community Centre
THAT the Director of Parks & Recreation be authorized to consider
alternative locations for the siting of the Alton Community Centre as part of
the site-specific feasibility study for the Alton Community Centre, being
undertaken as a component of the Parks, Recreation and Cultural Assets
Master Plan, as referenced in Parks & Recreation Department Report PR-14-
09, dated February 12, 2009; and
THAT the sites to be included are the proposed high school site in the Alton
Community and Norton Community Park; and
THAT the timelines for developing the site-specific options be as outlined in
Parks & Recreation Department Report PR-14-09, dated February 12, 2009;
and
THAT the Director of Parks & Recreation be authorized to advise the Halton
District School Board immediately following the March 4, 2009 Community
& Corporate Services Committee meeting, that the City is receptive to
exploring partnership opportunities on their school site location. (PR-12-09-
01)
Special
C&CS
(May 25, 2009)
Direction to amend options for the Alton Community Centre Feasibility
Project
THAT the Acting Director of Parks & Recreation be directed to add an
Option 1a to the Alton Community Centre Feasibility Project, which will
include all of Option 1 plus a quad double gym and its components; and
THAT Option 3 be deleted and Options 1, 1a and 2 of the Alton Community
Centre Feasibility Project be presented to the Alton Community Centre and
Library Public Open House on June 2, 2009 at Brant Hills Community
Centre.(Councillor Taylor)
Pg 5 of Report PR-37-09
4.0 DISCUSSION:
4.1 Alternative Sites
At it’s meeting of March 9, 2009, Council directed staff to investigate three alternative locations
for the future Alton Community Centre including:
City-owned property (3 hectares) at the southeast corner of Walkers Line and Highway 407
Alton high school site (6.3 hectares) on Dundas Street, west of Tim Dobbie Drive
Norton community park site (6.9 hectares) on Dundas Street, east of Tim Dobbie Drive
Subsequently, at a Special Community and Corporate Services Committee workshop held on
May 25, 2009, staff were instructed to eliminate the Walker’s Line site from further
consideration due issues related to visibility, accessibility, inefficiencies and partnership
constraints. Only options related to the high school site and Norton Park were endorsed for
further consideration and public consultation. See Appendix A for the site locations.
4.2 Strategic Considerations
The following provides a summary of various key factors that were considered in the
development of the programmatic vision of the Alton Community Centre:
Community Need: Through the master plan community consultations, many groups expressed
the need for additional high quality gymnasiums to accommodate increased participation and to
enhance their programs. Existing double gym facilities within the City are being used at near
capacity. Most double gyms are within high schools, and most are unavailable at certain times.
The City has only one full double gym at Tansley Woods and a smaller double gym at Brant
Hills. An investment to increase service capacity in this area is timely and appropriate.
Consideration will be given to establishing a Gymnasium Users Advisory Group similar to the
Ice and Field User Groups to discuss common interests related to facility operations, safety,
facility allocation, customer service, participation forecasts and growth and so on to assist the
City’s with its planning and operations.
Trends: Court sports such as basketball, volleyball, and indoor soccer (futsal) have gained a lot
of popularity around the world and are getting greater exposure and interest in Canada. There are
growing numbers of females participating in these areas. Fitness and aerobics activities continue
to grow in popularity and are well supported in gymnasium spaces.
Demographics: Northeast Burlington is the fastest growing area in Burlington. This area will
grow in population by another 10,000 to 15,000 people within the next 5-10 years. It has the
highest concentration of families with young children and youth. Based on the 2006 Federal
Census, 47% of preschool-aged children, 42% of primary grade children, 38% of youth between
10 and 14 years old, and 36% of teens between 15 and 19 years old live in the Tansley Planning
District (Northeast Burlington). In the next 5-10 years the area will see growing numbers of
youth and teens which may suggest that a youth centre/room would be a good idea. Northeast
Burlington also has the highest concentration of visible minority groups including South Asian
and Chinese groups, particularly in the Tansley, Millcroft and Orchard Communities, and it is
expected that Alton will follow this trend. Customary trends would suggest that these
Pg 6 of Report PR-37-09
populations may not be as inclined to participate in traditional ice sports and activities, but are
more likely to take an interest in indoor court sports.
Policy and Strategic Directions: Future Focus Seven provides a number of pertinent strategic
directions related to partnership development, facilities of excellence, accessibility, inclusivity of
programs and services, promoting active living and supporting arts and cultural interests within
the community.
System Wide Service Delivery Considerations: The City’s indoor recreational facility services
generally comprise of pools, arenas and gymnasiums/multi-purpose spaces. Based on previous
service assessments, current capacity reviews and early indicators through the ongoing master
plan process, it is anticipated that the current provision of aquatics facilities is sufficient to
service north Burlington and the entire City over the next 15-20 years. In terms of ice services,
community needs will be satisfied through the addition of two new ice pads at the Appleby Ice
Centre by next year. Therefore the focus for the new Alton Community Centre lends itself to a
gymnasium based facility.
4.3 Programmatic Direction:
The general vision for the Alton Community Centre is to build a dynamic and versatile facility
featuring high quality gymnasiums and multipurpose rooms capable of accommodating a wide
range of recreational and leisure interests. The recommended baseline program for the centre
consists of 2 double gymnasiums (full height), 3 multi-purpose rooms of varying sizes and
functional capabilities, and various other support spaces including administration/customer
service, change rooms, washrooms, lobbies and service areas. Table 2 summarizes the baseline
facility space requirements for the community centre.
Table 2 - Alton Community Centre Baseline Space Requirements Space Specifications Uses
Double
Gymnasium
Approx. 82’x115’
Area 9,430 sq. ft.
Sprung hardwood floor
Dividable to 2 single gyms
Each single gym requires its own
access
Ceiling minimum 26 ft and ideally
30 ft high
Consideration for bleachers
Adjacent storage required
Basketball
Indoor soccer
Volleyball
Badminton
Fitness/Yoga/Aerobics
Gymnastics
Drop-in/after school activities
Martial arts
Dance
General recreation/other
Training, clinics/camps
Tournaments and Events
Multi-Purpose
Rooms
Non-dividable minimum area of
1,500 sq ft
Dividable room approximately
2,500 sq ft
Storage and cupboards
Natural lighting
Potential resilient floor
Instructional classes
Preschool programs
Seminars
Workshops
Low impact recreation/ exercise
Seniors programming/centre
Youth centre/leisure space
Pg 7 of Report PR-37-09
Multi-Purpose
Rooms cont’d
Potential plumbing fixtures i.e.
sinks, washrooms
Acoustic walls/dividers
Equipment and furnishings as
required
Hobby/special interest groups and
programs
Music, arts and drama
Community meetings
Socials/birthday parties
Administration
Area
Approximately 1,500 sq ft
Offices
Customer service Area
Staff area
Small board Room
Supply and photocopy room
Customer inquiries and
information
Program registration and facility
rentals
Centre administration
Business meetings
Other Support
Spaces
Male, female and family change
rooms with lockers and modest
shower facilities, fully accessible
Public washrooms, fully accessible
Lobbies/viewing galleries
Janitorial/storage/ receiving areas
At this time, the idea of providing a multi-purpose room that is conducive to youth activities is
being contemplated due to the large number of youth and teens projected in the area and to take
advantage of synergies with the planned high school and other youth oriented initiatives planned
in Norton Community Park (i.e. skate park, outdoor basketball court, etc). Another multi-purpose
room will likely have a strong orientation towards preschool programs and activities during the
daytime to accommodate the many young families in the area. However these space are not
anticipated to be dedicated spaces.
At the same time, with the increased capacity of multi-purpose rooms in the area, there may be
an opportunity to dedicate the Youth/Seniors Room at Tansley Woods for seniors programming
and leisure space. The Seniors Board of Management have expressed an interest in providing
enhanced services and opportunities for seniors in north Burlington and are prepared to assist
with funding for this initiative. Tansley Woods would likely offer a more suitable environment
for seniors with the availability of the pool and library facilities, as opposed to the Alton Centre
which would be orientated more towards youth.
Arts programming is another key dimension that will be considered in the design of the Alton
Centre. Innovative strategies to accommodate arts programming through the shared use of
resources could be available depending on the partnership model that evolves for this initiative,
as discussed later in this report.
Where possible, the centre will be complimented by outdoor features and amenities that will
enhance services and the experience of facility patrons and the general community. Parking and
pedestrian circulation will be efficient and safe, and consideration will be given to
accommodating individuals arriving by bicycle, transit and other modes of transportation as well
as people with physical disabilities. The facility and site will be designed to a high architectural
standard in accordance with the Council approved urban design guidelines for the Alton
Community.
Pg 8 of Report PR-37-09
4.3 Partnership Opportunities
Partnership opportunities are a key consideration for the Alton Community Centre initiative.
Partnerships can enhance the scope and quality of services and amenities, provide programming
and operational synergies, add to the vitality of the facility and potentially achieve efficiencies
and cost savings. The sites under consideration provide varying degrees of partnership
opportunities. Major partner prospects for this initiative include the Halton District School Board
and the Burlington Public Library.
The Halton District School Board is planning a new high school on its site at the northwest
corner of Dundas Street and Tim Dobbie Drive providing various recreational and cultural
resources for community use (i.e. gymnasiums, classrooms, arts facilities, sport fields). All
funding and approvals are in place for this initiative, and the land purchase is being finalized.
Construction is scheduled to begin in Spring 2010 and opening of the facility is scheduled for
September 2011. The Board is receptive to capital partnerships provided there are demonstrated
mutual benefits in terms of shared resources, enhanced student opportunities and experiences,
and operating efficiencies and capital cost savings.
The Burlington Public Library has identified a future branch library for northeast Burlington,
preferably within the Alton Community. The Walkers Line site does not meet the locational
requirements of the Library Board, however, either of the Dundas Street sites would meet their
needs. Library staff have investigated numerous joint school/public library facilities in Ontario
and have expressed interest in pursuing such a model in Burlington.
In addition, the City issued a Request for Expressions of Interest to identify any other community
or service organizations/providers that would be interested in securing dedicated space within the
Alton Centre at their own cost. A notice for the RFEI was e-mailed to all community/stakeholder
groups that deal with the Parks and Recreation Department, and an advertisement was placed in
the Burlington Post. Various provincial sport organizations were also notified of the opportunity.
The RFEI produced 7 responses including various established community organizations, some
smaller community clubs, and a couple of private/commercial interests. The results of the RFEI
are attached as Confidential Appendix B.
The RFEI process was intended to identify viable interests and to assist with the facility planning
and conceptual design. A formal RFP is being undertaken to solicit partners depending on the
capacity available within the preferred option. The RFP will be open to any organization to
respond. The RFP process will be completed through June/July 2009 with a report to Council
anticipated in September 2009.
Pg 9 of Report PR-37-09
4.4 Development Options
A number of options were developed by the City’s consultants based on available sites,
programmatic needs and vision, partnership opportunities and Council directions. Table 3
provides a description of the 3 options that were developed as per Council’s direction. Council
had the opportunity to preview Options 1 and 2 at a Special Community and Corporate Services
Committee Workshop on May 25, 2009. Option 1a is a new option that was developed as per
Council’s direction.
Table 3 - Alton Community Centre and Library Development Options
Option 1
(Appendix C)
Option 1a
(Appendix D)
Option 2
(Appendix E)
Location Alton High School Site Alton High School Site Norton Park
Partners Halton District School
Board
Burlington Public
Library
City
Other TBD
Halton District School
Board
Burlington Public
Library
City
Other TBD
Burlington Public
Library
City
Other TBD
Indoor
Features
3 double gyms (1.5
City and 1.5 School)
3 multipurpose rooms
(one dividable)
Combined school/
public library
Additional school
resources (arts
classroom, studio
theatre, cafeteria)
Potential partner space
4 double gyms (2.5
City and 1.5 School)
3 multipurpose rooms
(one dividable)
Combined school/
public library
Additional school
resources (arts
classroom, studio
theatre, cafeteria)
Potential partner space
2 double gyms
3 multipurpose rooms
(one dividable)
Public library
Potential partner space
Outdoor amenities
(outdoor basketball
court, playground,
skate park)
Combined
Outdoor
Features
School/
Norton Park
1 lit artificial turf
sports field on school
site
2 lit artificial turf
sports fields at Norton
Park
1 lit artificial turf
sports field on school
site
2 lit artificial turf sports
fields at Norton Park
1 lit natural turf field
and 1 practice field on
school site
1 lit artificial turf sports
field at Norton Park
GFA
(sq. ft.)
School 170,000
Library 12,000 (7,000
Library Board + 4,800
from School)
Community Centre
37,000
Available Partner
Space 20,000 ±
School 170,000
Library 12,000 (7,000
Library Board + 4,800
from School)
Community Centre
48,000
Available Partner
Space 10,000 ±
Library 9,000
Community Centre
44,330
Available Partner
Space 20,000 +
Cost *(Incl. library
collections @
$800,000)
C.C.
Library*
Site Dev.
$9,842,000
$2,907,000
$1,500,000
$14,249,000
C.C.
Library*
Site Dev.
$12,768,000
$2,907,125
$1,500,000
$17,175,000
C.C.
Library*
Site Dev.
$12,412,000
$3,509,000
$2,250,000
$18,171,000
Pg 10 of Report PR-37-09
4.5 Analysis and Staff Position
The following provides an analysis of the various options based on a set of criteria:
Table 4 - Options Analysis
Criteria Option 1 Option 1a Option 2
Visibility/
Community
Identity
Very Good
Dundas St. exposure
Very Good
Dundas St. exposure
Very Good
Dundas St. exposure
Promotes
Synergies and
Partnership
Very Good
3-way partnership
Consolidated gyms and
libraries
Shared use of
facilities/park
Very Good
3-way partnership
Consolidated gyms and
libraries
Shared use of
facilities/park
Good
2-way partnership
Promotes
Facilities of
Excellence and
Sport Tourism
Very Good
3 double gyms
3 lit artificial turf fields (2
at Norton Park, 1 at
school)
Very Good ++
4 double gyms
3 lit artificial turf fields (2
at Norton Park, 1 at
school)
Fair
Separated gymnasium
resources (2 at centre and 1
full double gym at school)
1 lit artificial turf field at
Norton Park and 1 lit
natural field and a small
practice field at the high
school
Accessibility/
Central
Location
Very Good
More central to numerous
residential communities in
north Burlington
More accessible by
bicycle, walking, transit
Planned BRT stop at site
Very Good
More central to numerous
residential communities in
north Burlington
More accessible by
bicycle, walking, transit
Planned BRT stop at site
Very Good
More central to numerous
residential communities in
north Burlington
More accessible by
bicycle, walking, transit
Planned BRT stop near site
Realize
Economic/
Financial
Benefits and
Efficiencies
Very Good
Save 3 ha of land at
Walkers/ Hwy. 407.
Returning this site to
employment use would
have economic benefits
(i.e. jobs, tax revenue, etc)
Save on site development
costs i.e. share use of
parking (off-setting peak
times)
Leverages school facilities
to reduce community
centre space requirements
(i.e. combining gym
single gyms to create full
double gyms)
Potential savings of
design, management and
construction costs through
economies of scale
Sport tourism business
benefits
Very Good
Save 3 ha of land at
Walkers/ Hwy. 407.
Returning this site to
employment use would
have economic benefits
(i.e. jobs, tax revenue, etc)
Save on site development
costs i.e. share use of
parking (off-setting peak
times)
Leverages school facilities
to reduce community
centre space requirements
(i.e. combining gym single
gyms to create full double
gyms)
Potential savings of
design, management and
construction costs through
economies of scale
Sport tourism business
benefits
Good
Save 3 ha of land at
Walkers/ Hwy. 407.
Returning this site to
employment use would
have economic benefits
(i.e. jobs, tax revenue, etc)
Some economies of scale
savings
Pg 11 of Report PR-37-09
Criteria Option 1 Option 1a Option 2
Minimizes
Local
Residential
Community
Impacts (traffic,
green space,
etc)
Good
Potentially higher traffic
convergence to site
Does not impact planned
parklands/green space
Very active all day long –
no pause in activity
Good
Potentially higher traffic
convergence to site
Does not impact planned
parklands/green space
Very active all day long –
no pause in activity
Fair
Potentially higher traffic
convergence to the general
area
Reduces green space in
Norton Park
Enhanced
services and
convenience
Very Good
More services and
facilities under one roof
Bigger library that option
2
Potential accommodation
of arts programming
interests
Maintains 3 premiere
fields and parks
Very Good +
More services and
facilities under one roof
More gyms= more diverse
program opportunities
Bigger library than option
2
Potential accommodation
of arts programming
interests
Maintains 3 premiere
fields and parks
Good
Consolidates library and
recreational services
Reduces park services
Community
Need
Very Good
Provides a significant
amount of high quality
sport fields and
gymnasiums to support
local sport development
and growth
Very Good +
Optimizes amount of high
quality sport fields and
gymnasiums to meet
growing community sport
needs
Fair
Improves provisions and
conditions for local sport
needs
Loss of one artificial turf
field at Norton Park
School football filed and
practice field may revert to
natural turf. School would
consider artificial turf field
only if they were building
only one field without a
secondary practice field.
Community
Acceptance
Very Good
Positive feedback
Very Good
Positive feedback
Fair
Concerns noted about loss
of green space
Based on the analysis above, staff are recommending that the community centre and library be
incorporated on the Alton high school site as per Option 1a, for the following reasons:
Visible location offering a high level of community identity and opportunity for a
community landmark facility
More centrally located to the various residential communities in north Burlington and
easily accessible by walking, bicycling and future transit services.
Promotes synergies and optimizes partnerships through the consolidation and shared use
of facilities i.e. sport fields, gymnasiums, arts resources and library resources and
potentially joint programming (youth services), marketing and operations
Realizes economic benefits in terms of land efficiency, economies of scale and capital
cost savings, project management efficiencies, and sport tourism opportunities
Does not impact parks and local green space provisions
Pg 12 of Report PR-37-09
Enhances customer service and convenience in terms of the scope of facilities, amenities
and service/program offerings within the facility including potential accommodation of
arts program interests, bigger and better library, more gyms, etc.
Provides optimal number of high calibre sport fields and gymnasiums
Favourably received by the community at a public open house held on June 2nd
The City and School Board are already engaged in an extensive partnership arrangement
(including collegiate pools) and a have a history of working collaboratively for the
benefit of students and the broader community. The School Board also have an
agreement with the Burlington Public Library for a branch library at Kilbride Public
School. Of course the City and Library have very successful partnership arrangements at
the Brant Hills and Tansley Woods Community Centres
All parties have funding approved for their respective initiatives
Option 1a is more limited in terms of potential partner space offering approximately
10,000+ sq. ft., while Option 1 may provide 20,000 + sq. ft.
An opportunity like this may not present itself again
Options 1 and 1a are differentiated by the inclusion of one additional double gym in Option 1a.
Staff feel that there is merit in considering this additional resource for the following reasons:
serves community needs for the long term
provides a major city-wide resource
provides greater flexibility and capacity to facilitate a broader range of recreational and
leisure interests year round
better responds to growing interest in court sports (i.e. basketball, volleyball and indoor
soccer) as well as increased female participation in these areas
drastically enhances the quality and calibre of gymnasiums in the City
provides an additional venue that meets the technical requirements for a variety of sports
and activities in terms of ceiling heights, court sizes/markings, flooring, run-out zones,
equipment, etc. which is currently an issue with the current supply of gyms in the city
enhances local sport programs, quality of play, safety, athlete development and
competitive opportunities and raises Burlington’s profile as a leader in sport development
and excellence
provides enhanced opportunities for students (not only in the Alton High School)
can attract and accommodate major tournaments and events at the provincial and
potentially national level
provides enhanced customer service for the users of the facility (from facility booking to
on-site facility operating staff, set-up/clean-up) over what is currently experienced in high
school gyms
opportunity to take advantage of favourable economic/construction market conditions, as
well as potential economies of scale savings through the tendering of a large project to
build an additional gym facility at the best price
efficiencies increase with the operation of multiple gymnasiums
greater efficiencies for program providers from a volunteer resource and co-ordination
perspective by concentrating activities in one location
ensures more consistent availability and eliminates scheduling conflicts and bump outs as
currently experienced by high school gym users
currently, there are 9 high school double gymnasiums, 2 city double gymnasium, and
several smaller double gyms in various newer elementary schools. City gyms are used for
Pg 13 of Report PR-37-09
a broad range of recreational uses, while school gyms are used for sports programs. The
highest demand is for the high school gyms due to their size and ceiling heights to
accommodate various sports. Primetime demand for gymnasiums is typically Monday
through Thursday from 6 pm to 10 pm for a total of 144 hours/week of primtime. Within
this timeframe most schools typically reserve at least 1 night, and some 2 nights for
school activities and uses, while other high schools prefer to start community rentals later
in the evening after 7:30 pm or 8 pm. Staff estimate that within this primetime period 65
of the 144 hours potentially available are utilized for school activities. The remaining 79
hour/week are available for community use and are used at a high rate of 80-90%.
Community groups continue to request additional double gyms during primetime to
accommodate their current program needs and ongoing growth. The City has found it
challenging to accommodate these needs.
4.6 Partnership Development
City staff have been working closely with senior library and school officials over the past several
months to develop the 3-party joint facility concept (Option 1 and 1a) and a Memorandum of
Understanding (“MOU”) outlining various key principles, requirements and responsibilities for
moving forward with this initiative. The conceptual plan was developed collaboratively between
the Board’s architect Svedas Koyonagi Architects Inc. and the City’s feasibility consultants F.J.
Galloway Associates ltd. and Malhotra Nicholson Sheffield Architects Inc. The MOU was
facilitated by Tim L. Dobbie Consulting Ltd. The MOU is intended to be a legally non-binding
document except for the obligations of the parties to pay for the architect’s fees for detailed
design and the preparation of tender documents.
Senior staff from all parties support the conceptual plan and the MOU. The conceptual plan
(Option 1a) has also been reviewed and is supported by senior City planning and development
staff. At the time of writing this report, senior school and library officials were preparing to bring
forward the conceptual plan and MOU for their Board approvals on June 17th
and June 18th
respectively. Final approval is required by City Council in order to proceed. School officials
have requested notification of the City’s decision by June 2009 in order to commence the project
and meet their timelines. Any delay in approvals may jeopardize this unique opportunity.
Accordingly, staff request Council’s approval of Option 1a and the MOU framework document
attached as Appendix F.
Should Council proceed with this arrangement the following considerations should be noted:
The City would have ownership of the community centre and library facility asset on
Board property. No reimbursement required by the School Board for the use of its land
The design of the facility will be integrated functionally however efforts will be made to
ensure that each partner component maintains a distinct identity through the use
architectural features and materials
Provisions will be made to integrate the design of the project site with Norton Park in
order to ensure consistency in design, construction standards, alignment of driveways,
safe pedestrian connections and so on in order to convey the image of an integrated
community complex as opposed to two separate entities.
Every effort will be made to meet the specifications required for community sport and
tournament needs
Pg 14 of Report PR-37-09
The detailed design will be undertaken by the School Board’s architect Svedas Koyonagi
Architects Inc. SKA have extensive experience in school designs including gymnasiums
and library facilities
The City and Library may retain additional consultants to provide advice and to support
the design process
The project in whole will be tendered through the School Board
The project will be managed by the School Board including all quality, schedule and cost
control
The project will go through the City’s site plan approval process and conform to the
Council approved urban design guidelines for the Alton Community
There will be opportunities for community input into the detailed design
The final design and cost allocation will require approval from all parties
Each party will be responsible for paying the full cost of their share of the facility, site
development costs as well as soft costs (project management, design, furnishings, etc)
Various teams will be launched at different stages of the project with representation from
all parties including design/site plan team, legal team (multi-party agreement),
construction management team, operational start-up team, and potentially a facility
governance committee
A multi-party agreement will need to be executed prior to tendering the project
The City and Library would be responsible for ongoing capital repairs and renewal of
their own facilities, with a preference for a more co-ordinated approach to asset
management
Each party will be responsible for the operation of their own facilities including
associated liabilities and risks
The disposition of the currently owned site on Walker’s/Hwy. 407 will need to be
investigated and reported back to Council in the Fall 2009.
4.6 Next Steps
Table 5 provides an estimated timeline for the project suggesting a very aggressive schedule:
Table 5 - Estimated Project Timeline
# Activity Timeline
1. Implement Project Management Structure and Team Early July 2009
2. RFP for Partners June - July 2009
3. Schematic Design – Initiate Site Plan Approval Process July 2009
4. Draft Multi-Party Partnership Agreement July – August 2009
5. Design Development – Finalize Site Plan August – September 2009
6. Council Approval of Agreement, Design/Site Plan and RFP Sept/Oct 2009
7. Construction Drawings and Specifications Oct – Dec 2009
8. Tender and Council Approval Jan – March 2010
9. Construction April 2010 – August 2011
10. Building Commissioning July – August 2011
11. Completion and Opening September 2011
Pg 15 of Report PR-37-09
5.0 FINANCIAL MATTERS:
5.1 Capital Cost and Funding
Table 6 below provides a summary of the staff revised cost estimates for Option 1 and Option 1a.
The cost of the community centre under Option 1 is estimated at $11M. The cost of the
community centre under Option 1a is $14M which reflects the additional cost for the additional
double gym. The cost of the library under both options is $3.2M. There may be additional costs
associated with the library related to specialized consultants as well as a potential contribution
towards shared common areas and lobbies within the community centre which will be
determined at the detailed design stage.
Table 6 - Option 1 and Option 1a Cost Estimates Building
Component
Area
ft2
Unit
Cost/
ft2
Construction
Costs
Other
Costs1 @
40%
Total Cost Cost
Allocation
Op
tio
n 1
Community Centre 37,000 $190 $7,030,000 $2,812,000 $9,842,000 $11,042,000
(City) Site Dev – City2 $1,200,000 Incl. $1,200,000
Branch Library 7,000 $215 $1,505,000 $602,000 $2,107,000 $3,207,000
(Library) Site Dev. Library $300,000 Incl. $300,000
Collections $800,000
TOTAL Option 1 $14,249,000
Op
tio
n 1
a
Community Centre 48,000 $190 $9,120,000 $3,648,000 $12,768,000 $13,968,000
(City) Site Dev - City $1,200,000 Incl. $1,200,000
Branch Library 7,000 $215 $1,505,000 $602,000 $2,107,000 $3,207,000
(Library) Site Dev. – Library2 $300,000 Incl. $300,000
Collections $800,000
TOTAL Option 1a $17,175,000 1 Includes 7% design, 10% fit-up, 5% LEED, 3% project management and special requirement, 15% contingency. 2 Site development includes parking, grading, drainage, walkways, plazas, landscaping and signage.
Table 7 below provides a summary of the funds approved in the 2009 Capital Budget and
Forecast. Based on the approved 2009 Capital Budget and Forecast a total of $12.6M is budgeted
for the Alton Community Centre and $3.9M for the Northeast Library over the next 3 years.
However, subsequent to the approval of the 2009 Capital Budget and Forecast, the 2009
Development Charges (DC) Background Study and DC calculation for growth related projects
was calculated identifying the funding available from growth (DCs). As noted in the background
study, the recreation facilities capital costs (fundamentally Alton Community Centre) are well in
excess of the service level cap (eligible funding from DCs). Consequently, the DC funding
allowed for the community centre is less than the budget and forecast amount. As part of the
annual budget process for 2010, this growth related project would be aligned with the funding
splits for growth and non-growth funding as depicted by the 2009 DC Background Study to
ensure the service level cap is adhered to. The funding for the 2009 capital budget year is fully
financed, however adjustments are required to amend the forecast years to ensure the service
level cap and DC calculations are maintained.
The Recreation Facility Development Charges (RFDCRF) funding will therefore need to be
reduced from the total budget amount of about $9.3M to near $6.8M. This is a reduction of
Pg 16 of Report PR-37-09
approximately $2.6M in development charge funding for the Alton Community Centre project.
Moving forward, this essentially reduces the City’s funding for the project (through the reduction
in growth-related funding) to approximately $10M. Library funding has not been impacted by
the new development charge calculations.
Table 7 - 2009 Capital Budget and Forecast Funding Provisions and Amendments
Project Prior
Years 2009 2010 2011
Total
Funding
2009 Budget
& Forecast
Revised
Funding
Available
Alton Community
Centre $1,450,000 $10,605,000 $540,000 $12, 595,000 $10,000,000
Northeast Branch
Library $275,000 $150,000 $3,190,000 $300,000 $3,915,000 $3,915,000
Combined Total
$275,000 $1,600,000 $13,795,000 $840,000 $16,518,500 $13,915,000
Based on the revised funding available, Option 1 requires an additional $1M in funding, and
Option 1a (“Preferred”) requires an additional $4M in funding for the community centre
component.
Table 8 below provides a proposed strategy to finance the additional $4M required for the
recommended Option 1a.
Table 8 - Funding Strategy - Option 1a
Funding Source Amount
1. Recovery from sale of land (representing lower threshold) $2,700,000
2. Prior-approved funding from favourable tender(s) i.e. Appleby Ice
Centre Expansion
$400,000
3. Draw from Hyrdo Reserve Fund $900,000
TOTAL $4,000,000
With respect to financing the additional $4M required for Option 1a, it is recommended that the
primary source of funding be provided through the recovery from the sale of the original
community centre site, which is identified here as an amount of the acquisition purchase price of
land of $2.7M. Further information related to the potential disposition of this property is
provided in Confidential Appendix G. Any additional funding necessary to augment this is
recommended to come first from the $400,000 of tax supported debt that remains available from
the favourable tender of Appleby Ice report (PR-13/09) and not utilized as part of the Canada and
Ontario Infrastructure Stimulus Fund Project (CSI-07/09), and secondly, up to $900,000 from the
Hydro Reserve Fund. Staff recommend funding from the Hydro Reserve Fund given the
uniqueness of the partnership opportunities of this project. Staff did pursue the opportunity to
capitalize on any prior approved P&R capital projects that have not commenced, but were unable
to identify such projects at the time, however will continue to pursue this avenue.
If Council chooses Option 1, staff recommend funding the additional $1M through the recovery
from the sale of lands of the original community centre site on Walkers Line.
Pg 17 of Report PR-37-09
In addition, it should be noted that consistent with the City’s capital financing policies,
advancing the 2010 funding for this project requires that all reserve funds be transferred at the
time of approval, however any debt financing will be provided for the approval of the tender
award which is anticipated for winter/spring of 2010. The actual debt financing is consistent with
the City’s budgeting guidelines, even though a commitment has already been made.
From a cash-flow perspective, depending on the potential growth revenue in development
charges, the city will be required to borrow approximately $2.6M of growth related funding, in
accordance with the growth related borrowing policy, given the available recreation facility
development charges fund being at about $4.1M of the required $6.7M proposed to be used for
the community centre to be financed. In addition, growth related funding guidelines may have to
be adjusted in order to ensure balances in reserve funds accommodate any necessary borrowing
requirements.
In addition, staff will explore other potential funding opportunities including the FCM Green
Municipal Fund and corporate sponsorship and naming rights, subject to School Board approval.
It should be noted that the School Board is not able to contribute additional funds towards
gymnasiums that exceed typical provisions due to constrained funding guidelines.
In order to move forward with this partnership opportunity, staff request pre-approval of the
2010 budget forecast as amended as well as approval of the additional funding required for the
recommended Option 1a. In addition, staff propose to advance all 2011 Alton Community
Centre and Library related projects to the year 2010 as part of the 2010 capital budget process.
Pre-approval of funding is necessary in the event that the tender process is expedited early in
2010 before the approval of the City’s 2010 capital budget and to solidify the City’s financial
commitment to the project. It should also be noted that any approved partners that emerge
through the RFP process will be expected to cover 100% of their capital requirements, however
approved partners may be eligible for financing through the City’s joint venture capital financing
policy.
Staff advise that the Alton Community Centre is one of many initiatives evolving out of the
Parks, Recreation and Cultural Assets Master Plan. However, this initiative has been identified
for many years in prior approved facility master plans and capital budgets and forecasts.
Significant funding will be required to support all other initiatives currently being considered or
that evolve as priorities out of the broader master planning study. Funding strategies will be
investigated for all other recommended initiatives through the upcoming budget process.
Pg 18 of Report PR-37-09
5.2 Operating Implications
Table 9 provides the estimated operating requirements for the new Alton Community Centre and
Library based on various comparable benchmarks:
Table 9 - Operating Forecast – Full Year (2009 Dollars)
Community Centre Library Comments
Expenditures $800,000 - $850,000 $630,000 Staffing, utilities, supplies,
services, repairs, programming
Revenues ($450,000) – ($500,000) $30,000 Registration fees, facility rental
fees, recoveries, etc.
Net Operating
Budget $300,000 - $350,000 $600,000 Tax supported
Operating funds will be required in 2011 for staffing, start-up requirements and full operations
commencing in the fall of 2011. A net operating budget of about $200,000 will be required for
the start-up year. Staffing will be in place prior to the operation for set-up, training and booking.
There will be initial supply/stock-up costs. Revenue will be realized only in the fall 2011 season.
6.0 ENVIRONMENTAL MATTERS:
The Alton Community Centre will be designed towards LEED Silver uncertified standards. An
analysis of potential LEED certification and related costs will be reported during the detailed
design phase. As indicated, applications will be made to the FCM Green Municipal Fund.
7.0 COMMUNICATION MATTERS:
An open house was conducted on June 2nd
at the Brant Hills Community Centre to share the
various conceptual options and receive feedback from the community. Notification letters for the
open house were sent to all residents within the Alton Community as well as residents within the
Millcroft Community that reside within 120 m from the 2 alternative sites along Dundas Street.
Another 600 notification letters went out to community groups and service providers advising
them of the open house. The open house was also advertised in the Burlington Post.
Approximately 20 residents attended providing favourable comments for Options 1 and 1a (joint
high school and community centre). Concerns were expressed about the potential of losing green
space with Option 2 - Norton Park Option 2. Appendix H provides a summary of the open house
consultation results.
As this initiative progresses through the detailed design and site plan approval process, more
opportunities will be provided for community input. In addition the City will raise the awareness
and profile of this important initiative through a range of communication strategies such as a
project web page, media releases and City Talk.
Pg 19 of Report PR-37-09
8.0 CONCLUSION:
City staff and consultants have completed their investigation on potential options for the
development of the Alton Community Centre and Library. Staff are recommending Option 1a
which consolidates the high school, community centre and branch library on the Halton District
School Board property at the northwest corner of Dundas Street and Tim Dobbie Drive as
outlined in the Memorandum of Understanding attached for Council’s approval. This option will
optimize the number of high quality facilities to serve the community over the long term, attract
tournaments, promote synergies and enhance services and programs (i.e. combined bigger
library, opportunity for community arts programming, etc), provide a more substantive and
dynamic facility in a more visible location, realize economies of scale and capital cost savings,
land use efficiencies, and elevate Burlington’s profile as a leader in sport development and
excellence.
Staff have worked closely with senior library and school officials to develop and test this option
over the last several months. All parties are fully supportive of this initiative and approvals are
being sought from the respective Library and School Boards at the time of writing this report. In
order to join this unique opportunity for the Alton Community Centre, a decision is required at
this time.
Respectfully submitted,
Jim Seferiades, Planner – Business Services
Parks and Recreation Department
Copy filed: s:\inet\
Pg 20 of Report PR-37-09
Appendices: APPENDIX A – Alton Community Map
APPENDIX B “CONFIDENTIAL” – RFEI Results for Alton C.C.
APPENDIX C – Option 1
APPENDIX D – Option 1a
APPENDIX E – Option 2
APPENDIX F – Memorandum of Understanding
APPENDIX G “CONFIDENTIAL” – Alton Land Matter
APPENDIX H – Public Open House Results – June 2, 2009
Staff / Others Consulted: Name Telephone
Gerry Cullen, HDSB
Bill Wotherspoon, HDSB
Maureen Barry, BPL
Kathryn Rogers, BPL
Susan Fitzgerald-Bell, BPL
Tony Svedas, SKA Inc.
Fred Galloway, GA Inc.
John Nicholson, MSNA Inc.
Tim Dobbie, TLD Consulting Inc.
Leo DeLoyde, D&I
Joan Ford, Finance
Anne Marie Coulson, Finance
Ron Steiginga, Legal
Erika Kubota, Legal
Chris Glenn, P&R
Rob Peachey, P&R
Charlotte O’Hara-Griffin, P&R
Denise Beard, P&R
Heather Pilling, P&R
Cathy Lamb, P&R
Stephanie Venimore, P&R
Jen Spence, P&R
Jamie Tellier, Planning
Fred Gottschling, Planning
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(905) 335-7600 ext. 7679
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Special Instructions: Issue Appendices B and G Confidentially