HomeMy WebLinkAboutINS-16-066 - City Hall Outdoor Spaces Master Plan
REPORT TO: Community & Infrastructure Services Committee
DATE OF MEETING: September 12, 2016
SUBMITTED BY: Cynthia Fletcher, Interim Executive Director INS
Justin Readman, Interim Executive Director - INS
PREPARED BY: Lynda Stewart, Interim Manager, Facilities Management
519-741-2600 X 4215
WARD(S) INVOLVED: All
DATE OF REPORT: August 1, 2016
REPORT NO.: INS-16-066
SUBJECT: CITY HALL OUTDOOR SPACES MASTER PLAN
___________________________________________________________________________
RECOMMENDATIONS:
That the City Hall Outdoor Spaces Master Plan dated September 2016 be
received; and
That the redevelopment of City Hall outdoor spaces to address critical
infrastructure repairs (e.g., surface concrete, trench drains, parking garage
structure and underlying membrane) which are reaching the end of their life cycle
and represent health, safety and accessibility deficiencies be considered the first
priority; and
That Council select one of the options below to be included in the funding and
implementation strategy, recognizing there are cost and design efficiencies to
complete this work concurrently with critical infrastructure replacements:
1. Do not add any additional options as part of the critical infrastructure
repair program;
2. Replace ice rink and fountain; or
3.Replace ice rink, fountain and stage
That all remaining infrastructure and functionality improvements, such as
upgraded site lighting, landscaping and shade infrastructure, be deferred subject
to funding availability; and
That staff be directed to develop a multi-year funding and implementation
strategy, including capital and operating funding requirements, recognizing that
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full implementation of this plan is dependent on potential partnerships with
federal, provincial and private sector partners.
BACKGROUND:
Kitchener City Hall opened in 1993 after a national design competition was awarded to
Kuwabara Payne McKenna Blumberg Architects. Exterior spaces were also included in
the design and featured a large open square with a fountain and ice rink that helps
define the King Street elevation, while a smaller
Duke Street side. The outdoor spaces were intended to be community gathering spots,
allowing for a variety of events and activities to occur, and they have lived up to their
original design intent.
After 23 years, infrastructure elements are nearing the end of their serviceable life and
are showing significant signs of wear and deterioration. For example: salt and water are
penetrating the parking garage membrane and deteriorating the roof of the garage; the
concrete paving throughout Carl Zehr Square and the Duke Street Plaza is cracked and
heaving resulting in an uneven, potentially dangerous surface and an unsightly image
for a prominent civic space.
Before undertaking any plans to repair or retrofit infrastructure, it was recognized this is
an opportunity to review how the spaces are being used and identify if any changes or
additions would better support the programming and operations of today and into the
future.
In June 2015, Tender E15-037 was awarded to GSP Group, a Kitchener-based
landscape architecture and urban design firm, to undertake the City Hall Outdoor
Spaces Master Plan. Working with sub-consultants in a variety of disciplines and a
Project Team comprised of city staff, this project was undertaken in three phases.
Phase 1
was completed from July to December 2015 and resulted in a site assessment
and a draft vision for Carl Zehr Square and the Duke Street Entrance plaza. Work in
phase 1 involved:
Review of the condition of existing infrastructure and the extent of repairs or
retrofitting required
Review of the functionality and accessibility of the outdoor spaces
Assessment of how existing infrastructure is used (or not used) for events and
by the community
A series of workshops with stakeholders
A public open house and on-line feedback opportunities
Phase 2
ran from December 2015 through spring 2016 to develop two conceptual
designs based on the input received in Phase 1. In phase 2:
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A public open house and online survey were conducted to get feedback on the
two conceptual designs
A draft master plan incorporating the results of the work undertaken in phases 1
and 2 was presented to the project team in June 2016 for review and comment
Phase 3
In , the consultants refined all the information and feedback received into a
preferred layout and final master plan. Included in the master plan is:
Detailed description of existing conditions including infrastructure like lighting,
paving, electrical, fountain and rink
Details around current maintenance practices/requirements
Summary of current programming
Summary of public input
Overview of design principles developed through best practices and The City of
Kitchener
Preferred layout intended to improve accessibility, sustainability and functionality
and enhance programming and amenities
REPORT:
The purpose of this report is to seek Council direction on the inclusion of concurrent
upgrade aspects, fountain/rink and stage, as part of the critical infrastructure
replacement phase. Staff are seeking direction at this time for three reasons: 1) the
overall cost to complete the work is significant and currently unbudgeted; 2) these
components were identified as high priority by stakeholders since they currently limit
flexibility and create operational challenges for events / programming; and, 3) there are
cost and design efficiencies in doing this work at the same time as the critical
infrastructure replacement.
Existing Conditions
An engineering report identified cracks and leaking of salt and water into the ceiling
of the parking garage which increases the risk of structural issues within the parking
garage.
Deterioration and damage to the paving surface present significant accessibility and
liability issues.
The drainage infrastructure, particularly the trench drains, is in poor condition.
The physical design of site features, including the stage, fountain, stairs and ramps
create accessibility issues.
Both the ice rink and fountain are original equipment and reaching the end of
expected lifecycle. Replacement should be considered, as the fountain and ice rink
were rated very favourably in feedback provided
Programming and events at City Hall have grown considerably and are expected to
continue to expand in scale and variety of activities.
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Currently, there are some limitations for events. The size and position of the stage
and fountain both impact programming, limiting the usable area of the square for
events.
Draining the fountain for events is a labour and time intensive activity and
necessitates blocking off part of the square to prevent trip and fall injuries due to the
grade change.
Lighting, electrical and audio-visual provisions for events are minimal, making it
necessary to rent equipment for community and City events.
Feedback indicated a lack of shade is a concern and impacts comfort and citizen
participation in events.
Lighting at City Hall has been partially replaced, when necessary, however, some
fixtures have been damaged from salt use and weather elements or
decommissioned for safety reasons.
The height of the green wall on Duke Street limits sight lines for pedestrians on the
street and other patrons in the public space.
More detailed information about the existing conditions can be found in Appendix A,
attached to Report INS 16-066 or in the City Hall Outdoor Spaces Master Plan, dated
September 2016.
Master Plan Vision
Carl Zehr Square is a vital and integral part of citizen and community interactions at City
Hall, and serves many functions. Nearly 25 years later, the original design intent for Carl
Zehr Square has been validated, through consultation and engagement, as:
the premier public event space in the city, hosting festivals and events of all sizes;
a comfortable, safe and welcoming space that encourages social and community
interaction; and
an iconic image linking city hall to the commercial and community activities in
Downtown Kitchener.
Duke Street entrance is considered a less active area than Carl Zehr Square. The
image of Duke Street is seen as:
an attractive and inviting neighbourhood green space;
a showcase for historical and artistic images and artifacts; and
a passive space, but flexible to host smaller scale
Detailed images and descriptions of the proposed designs and layouts can be found in
the City Hall Outdoor Spaces Master Plan, dated September 2016.
While the master plan design presents the potential development of the spaces, it is
recognized that the full implementation is not an affordable option and three priorities
have been determined. The most immediate needs are the critical infrastructure;
concurrent upgrades are suggested for consideration because opportunities exist to
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offset costs when other work is undertaken; and deferred items would only be
considered if funding were available.
Critical infrastructure
needs are:
Replace surface paving to address accessibility and liability issues
Replace surface drainage and necessary electrical infrastructure, when paving is
removed
Replace waterproof membrane to address leaking and minimize risk of structural
damage to the parking garage
Concurrent upgrades
to support programming and provide flexibility for events:
Redesign fountain to remove barriers and improve operational efficiency to
accommodate a variety of events and replace ice plant components which are
nearing end of serviceable life
Relocate the stage to improve functionality and accessibility, incorporating electrical,
lighting and audio-visual connections for programs and events
Deferred items
to be completed as budget allows include:
Incorporate shade features for comfort and protection from UV exposure
Redevelop Duke St. to showcase public art and historical artifacts
Regrade Duke St. to remove inaccessible stairs & provide a secondary event space
Replace and upgrade efficiency of site lighting and power distribution
Provide additional site furnishings and plantings
ALIGNMENT WITH CITY OF KITCHENER STRATEGIC PLAN:
Strategic Priority: Safe and Thriving Neighbourhoods
Strategy: 3.6 Provide opportunities and support for citizens to lead the way in creating
active and vibrant public spaces -being
by capitalizing on local community assets such as community centres, pools, arenas,
parks trails and other public spaces.
Strategic Priority: Strong and resilient economy
Strategy: 2.5 Facilitate the ongoing development of Downtown Kitchener as the heart of
the city.
Strategic Priority: Sustainable environment and infrastructure
Strategy: 4.2 Managing storm water and 4.5 Strengthen the capability and capacity
dependable and sustainable in the long-term.
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FINANCIAL IMPLICATIONS:
Staff is not asking Council to commit any capital funding as part of this report. Staff is
seeking direction on how to proceed with fountain/rink and stage upgrade options. Staff
will be reporting back to Council with a funding and implementation strategy in 2018.
All costs are in 2016 dollars and assume work is done concurrently allowing for cost
efficiencies. Should Council direct staff to complete the work in multiple phases, costs
will increase for mobilization, engineering approvals and lost economies of scale.
The full cost of implementation for all recommendations in the masterplan including Carl
Zehr Square and the Duke Street Entrance is $10 million dollars. The chart below
provides the full cost breakdown.
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If Council chooses to proceed with critical infrastructure repairs only the cost would be
$4.5 million.
If Council chooses to include the replacement of the fountain and rink while doing the
critical infrastructure repairs the cost would increase by $1.7 million for a total of $6.2
million
If Council chooses to include the replacement of the fountain, rink and stage while doing
the critical infrastructure repairs the additional cost would be $2.6 million for a total of
$7.1 million.
The cost to complete the remaining items in the masterplan is $2.9 million with the
detailed breakout in the chart above
If Council does not choose to proceed with the fountain and rink at this time there is a
risk of a rink brine line failure. If this occurs staff would have to reprioritize work in order
to keep the rink functioning. Replacing the fountain later may also eliminate the
possibility for it to be a zero-entry edge on all sides. As a result, there would be a grade
change at King Street which would have programming and accessibility implications.
COMMUNITY ENGAGEMENT:
INFORM e agenda in
advance of the council / committee meeting.
Multiple techniques were used to inform and seek feedback from stakeholders during
this project. Engagement included:
Social media posting sharing updates throughout the consultation process
Direct email notifications to advisory committees, event organizers and
community organizations, such as the BIA and neighbourhood associations, and
to individuals who provided contact information
Invitations to key stakeholders to participate in focus groups
The city website (www.kitchener.ca/innovatethespace) was updated regularly
with project information, public meeting details and links to on-line tools and
conceptual plans
On-site signage directing stakeholders to the website for more information and
feedback
Paid advertising in The Kitchener Post, as well as six articles in local print media
andYour Kitchener
Three radio interviews with local broadcast stations
CONSULT Public meetings, on-line surveys and focus groups were held to consult
with stakeholders and residents regarding this project.
Through stakeholder focus groups in September 2015 and two public open houses in
November 2015 and March 2016, approximately 100 people had face to face contact
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with the project team. In addition, project staff met on two occasions with members of
the Grand River Accessibility Awareness committee to gather their input, and with
members of the Public Art Working Group.
There were three opportunities to provide feedback online through traditional online
surveys and the new Engage Kitchener platform. There were more than 1,800
interactions through those opportunities and the project team received nearly 300
comments with respect to the vision of the spaces, what people liked/disliked about
them currently and their input on the proposed designs.
CONCLUSION:
City hall plays an integral role in a city. How it is used and viewed by the community can
shape citizens interactions and perceptions of the city. By creating a space for people to
gather, we can help citizens to better connect with their community through informal
interactions and programmed events.
While there is a need to address the critical infrastructure issues that prompted this
master plan process, the potential of this space could be transformational and it could
truly become the vibrant epicenter of our community that is envisioned in our Strategic
Plan and Make it Kitchener.
ACKNOWLEDGED BY: Justin Readman, Interim Executive Director - INS
Cynthia Fletcher, Interim Executive Director INS
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APPENDIX A
Summary of Existing Conditions
The impetus for developing this master plan is to address critical infrastructure issues
same time, use and functionality of the spaces was reviewed. This appendix presents a
summary of the issues identified and the related impacts.
Accessibility Issues
There are both real and perceived barriers in both Carl Zehr Square and the Duke
Street Entrance. The fountain in the square creates a physical separation from King
Street impacting the flow of traffic and the hard, raised edges become tripping hazards
when the fountain is drained. The pedestrian ramp from the College St. underpass to
the second floor balcony does not meet current accessibility regulations and the stage
can only be accessed via a staircase. The Duke Street side has numerous grade
changes and only allows barrier free access to city hall via the central courtyard.
What we heard
We received comments from stakeholders and the public with respect
to the grading issues, difficulty traversing the space using mobility aids, the number of
stairs and the lack of markings for pedestrian wayfinding. All of these create
accessibility barriers for people.
Pavement
Concrete paver blocks highlighted with granite accent bands cover the surface of both
Carl Zehr Square and the Duke Street plaza. These pavers, especially those closest to
City Hall main entrances, are breaking or cracking in many locations resulting in an
uneven surface. They are nearing the end of their life expectancy and have seen
significant deterioration as a result of the use of salt and its residue. The uneven surface
presents a tripping hazard for pedestrians.
The granite slabs are, for the most part, good condition but are susceptible to flash
freezing during the winter, further necessitating salt use. It should be noted, in the upper
terrace area on Duke Street, granite paving stones are in place and are in generally
good condition with few cracks as this area is not subject to winter snow removal
activities.
Drainage / Parking Garage Membrane
Drainage and runoff for both Carl Zehr Square and the Duke Street Entrance is
managed through a series of trench drains covered by galvanized steel grates that
connect into the parking garage drainage system. It was noted that most of the grates
are in poor condition and have been damaged by snow removal activities. The Duke St.
entrance plaza also includes area drains and planter drains that are connected to the
parking garage drainage system.
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Approximately 75 per cent of Carl Zehr Square and 65 per cent of the Duke Street plaza
sits on top of the concrete slab that forms the roof deck of the parking garage. An
engineering report from May 2014 identified leaking cracks, peeling paint and
efflorescence in the podium deck slab. Efflorescence is a crystalline deposit of salt on a
porous surface such as concrete related to moisture migration. A further study in July
2016 showed the extent of leaking cracks has increased by 275 per cent since the
previous report.
Skating Rink/Ice Plant
The ice plantand associated brine lines used in the operation of the skating rink are
original equipment that has been well-maintained and is currently in working order.
However, the life cycle of ice making equipment is approximately 25 years, and should
be considered for replacement in the near future.
What we heard
much of the feedback received from the public identified support and
appreciation for the skating rink. This is a highly valued element of the square and
should be maintained or augmented.
Fountain Pumps
The current fountain features five fountain heads, each with its own pump, and an
additional pump for the filtration system. All of the pumps were found to be in working
order; however there is an overflow of water into the ice plant pit if more than two
fountain heads are operated simultaneously. Additionally, there is a small recurring leak
in the water reservoir tank.
What we heard
Aside from the skating rink, the fountain was the next most favourably
commented on element in the square. People value the presence of water and the
sound blocking capabilities, but often expressed a desire to interact with the water.
Lighting and Electrical
A variety of lighting fixtures are used on and around the city hall property to create a
safe, welcoming and attractive public space. The application and condition of the
various fixtures is outlined below:
wall and pole mounted lights and pot lights - currently in working condition, but
older, less efficient technology
pathway/walkway lighting - updated in 2008 and is again in need of replacement
or repair due to corrosion from salt use and weather elements, and
planter and tree uplighting -
following a light study in 2015,
Events and Public Use
Carl Zehr Square is extensively used for programming and events. The variety and
number of events and activities offered by the City of Kitchener and community
organizations has grown significantly since City Hall was first built. In the last five years
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alone, attendance at events has increased over 30 per cent and the number of events
number of small to mid-sized events that promote vibrancy on a more frequent basis.
Year Number of EventsAttendance
201140Approx. 440,000
2015100Approx. 584,600
While the number and size of events continues to grow, there are some limitations
imposed by current infrastructure:
Stage
The stage on Carl Zehr Square is granite on the surface and sides and much of the
stage skirt has been re-clad in composite decking material due to the deterioration and
cracking of the granite related to maintenance activities, including salt use. The size and
orientation is not suited to most events. For large events, the stage is too small and the
position of the stage at a 90 degree angle to City Hall main doors and between the
fountain and building, limits the audience numbers. Another concern noted with the
stage is a lack of shade, requiring a portable canopy structure to be used often in the
warmer months. As noted previously, this stage is not accessible.
What we heard
Stakeholders and staff who support events shared their concerns
about the lack of functionality of the stage and the cost of renting stages to meet their
Fountain
For larger events, the fountain is often drained to accommodate space for programming
and audiences. This is a time and labour intensive process that must be repeated when
the event has concluded. The fountain, drained or operating, presents accessibility and
programming challenges because the infinity edge design results in a grade separation
between the fountain base and the sidewalk. This area must be barricaded when the
fountain is drained to prevent a tripping hazard, thereby limiting the area available for
events programming.
Comfort/Shade
The amount of hard surfaces, combined with a lack of shelter and trees, can create a
barren, desolate and windswept space depending on the weather conditions. There is
little to no protection from the rain or sun which can limit the use of the spaces or reduce
What we heard
We heard through the consultation process numerous comments
about the lack of shade, the desire for more trees to provide shelter and balance the
option of sun.
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The Waterloo Region Shade Work Group was consulted in the development of this
master plan. As final designs are developed, we will continue to collaborate with this
group to strike the balance between flexible multipurpose spaces and shade
considerations.
Audio/Visual
Very limited audio visual equipment is available to serve special events at City Hall. The
audio system consists of a pair of exterior format speakers under each building wing
that competes with traffic and fountain noise, making it difficult to hear beyond the
immediate area. Additionally, a pair of small-format public address loudspeakers is
mounted to the underside of the main balcony. An exterior roof-mounted Christie Digital
projector can be used to project video and images onto The Cube at the top of city hall.
This prominent position is visible from several vantage points in Downtown Kitchener
and parts of Carl Zehr Square. Currently, audio associated with any video shown on
The Cube cannot be broadcast to the square.
Lighting and Electrical
On the city hall site itself, older lighting technology is in use and the lights are static
white with no ability to change colour or intensity for different applications. Electrical
receptacles are found on the existing stage and below the stairs to the balcony in Carl
Zehr Square. A dedicated receptacle on the balcony connected to the lighting control
system is provided for the Christmas tree display. The majority of receptacles on Duke
St. are not functional and have been de-commissioned as they are not sufficiently
elevated above grade to prevent snow and water infiltration.
While there are several power connections available throughout the square, for many
events, they are not suitably situated resulting in cables running through the square
which produces uneven surfaces and accessibility concerns.
Depending on the size and nature of the event, requirements for sound, lighting and
staging can vary considerably. The average cost to rent a small sound system would be
approximately $1,000. A portable sound system can be provided by The City of
Kitchener, and this is suitable for smaller events. However, in 2015, approximately
$124,000 was spent by community groups and the city to rent sound, lighting and
staging equipment.
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