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HomeMy WebLinkAboutCSD-06-059 - Williamsburg Neighbourhood Development ) R Community Services Report To: Date of Meeting: Submitted By: Community Services Committee May 1 , 2006 Prepared By: Mark Hildebrand, Interim Director, Community Programs and Services ext. 2687 Debbie Campbell, Interim Manager Program and Resource Services ext.2623 Ward 4 Ward(s) Involved: Date of Report: Report No.: Subject: April 26, 2006 CSD-06-059 WilliAMSBURG NEIGHBOURHOOD DEVELOPMENT RECOMMENDATION: That Community Services staff be directed to explore the potential to partner with the YMCA and RBJ Schlegel, to lease meeting, office and community space for a multi- year period at the proposed Williamsburg Family YMCA Project, the details to be brought back to Council for approval. BACKGROUND: The purpose of this report is to apprise Council of two proposals received by Community Services staff related to a potential public-private partnership between the YMCA, RBJ Schlegel Holdings Inc., and the City of Kitchener; to provide a review of these proposals and staff recommendations for Council's consideration. On October 26, 2005, staff in the Community Services Department received and reviewed a proposal for the development of a community centre/family YMCA facility for the community of Laurentian West. In the proposal, the City is asked to commit to a capital investment of $2 million as a proportional share of the building space. It was proposed that the YMCA would oversee the programming of the facility. The proposal specifies that the capital investment would provide the City with a community meeting room, a joint gymnasium/auditorium and other shared space. The proposal was submitted by Mr. John Haddock, C.E.O. of the Kitchener- Waterloo area YMCA requesting a partnership with the City of Kitchener. After several discussions between the parties, a second proposal with two additional project alternatives for the Williamsburg Family YMCA Project was provided to the Community Services staff in February, 2006. These alternatives consider leasing arrangements with the YMCA and/or RBJ Schlegel Holdings Inc. Report No. CSD-06-059 Page 2 In reviewing the proposals, the implications were considered not only for the Williamsburg area, but also for other neighbourhoods in the City of Kitchener. The proposals generated reflection on the current community development model (Community Resource Centre Model), which is responsive to identified needs in existing communities. However, the community development model has lacked the capacity to work proactively with newly-developed emerging neighbourhoods, to provide assistance to community members in growing and developing a neighbourhood identity and anticipating community needs. This report addresses both the current YMCA proposals for the Williamsburg community, as well as provides recommendations for involvement with emerging communities to assist them in developing their individual capacities. REPORT: YMCA Proposals RBJ Schlegel is the land owner for the proposed capital project in the Laurentian West community. The land is located in proximity to a proposed elementary school and community green spaces. In early 2005, RBJ Schlegel approached the YMCA with a proposal to partner in the development of a facility devoted to community use in recognition of the anticipated growth in population in this community. The YMCA conducted a market survey in the geographic areas of Laurentian Hills, Laurentian West, Country Hills, Huron Park, South Plains, Trussler and New Dundee. The focus of the study was on projected opportunities for selling family memberships for fitness and recreation. The study concludes that the projected recreational trends for Southwest Kitchener are such that they anticipate a need for a community space and recreational programs. This study affirmed the YMCA in their desire to develop recreational and fitness programs in the proposed area. They approached the City of Kitchener to partner with them based on: a) projected population growth in Southwest Kitchener; b) the Resource Centre model which is in place in community centres throughout the city; and, c) the identification of South-west Kitchener in the Leisure Facilities Master Plan as a primary location for a future Community Centre. Proposal #1 : October~ 2005 In the October, 2005 proposal, YMCA/Schlegel proposed a two story facility, anticipated to have a total of 40,000 square feet with the main floor devoted to community space and child care, and the second floor devoted to fitness and recreational activities operated by the YMCA. RBJ Schlegel would retain approximately 3,000 - 4,000 square feet of leaseable space. Parking would add 12,454 square feet to the overall facility size. Potential partners and capital commitments in this proposal were identified as: the YMCA, City of Kitchener, Best Start Child Care through the Region of Waterloo, RBJ Schlegel with an increased contribution to park space and financed leasable space. Overall project cost was $8,500,000. Ownership of the facility was not clear at that time, but the YMCA's vision was to operate rather than own the facility and the property would remain in the possession of RBJ Schlegel, or be purchased by another business. The YMCA traditionally serves a population of up to 30,000 residents per facility, and most facilities are operated, but not owned by them. Report No. CSD-06-059 Page 3 The request for the City to provide a $2 million capital contribution was not based on assessment value of available space, but rather on the projected overall capital cost of $8.5 million and the need for partnership contributions. Proposal #2: Februarv~ 2006 The proposal provided in February, 2006 included two different project alternatives for the Williamsburg Family YMCA Project. The size of the facility remained the same as in the initial proposal. The first option identified RBJ Schlegel Holdings as the landlord, constructing a facility to accommodate programs and dedicated space for the YMCA and other potential partners such as City of Kitchener, KPL, and Region of Waterloo/Best Start. RBJ Schlegel would enter into a lease agreement with the YMCA for a minimum of 20 years. The space would be shared or segregated by the user groups as mutually agreed by the YMCA and the YMCA's subtenants. The YMCA would be required to enter into sub-agreements with the user groups, including the City of Kitchener, for no less than 20 years. Cost to the City of Kitchener was identified as $2,000,000. RBJ Schlegel would retain 5000 square feet for lease to complementary health professionals. Construction would begin no later than April 1 , 2007. The second alternative that was provided identifies RBJ Schlegel as entering into a lease directly with each party so that the total project is not dependent upon anyone party proceeding or not. In this alternative, the process of project/partner development would be totally driven by Schlegel Holdings. It would provide RBJ Schlegel with greater flexibility to include potential private sector partners as key tenants in the event that the non-profit or municipal tenants are not interested. Primary Considerations In considering the YMCA partnership proposals, staff has considered the following: i) Facility Location ii) Financial Considerations iii) Alignment with the City's Community Resource Centre Model iv) Park Development These are outlined below. 1. Facility Location The LFMP calls for the development of a community centre at or around Huron Farm in 2012. The YMCA proposes that this development could be delayed significantly if the City were to partner with the proposed Williamsburg facility. The merit of this suggestion is hard to respond to in absence of a clear understanding of the population trends in South-West Kitchener. It has been identified that we can anticipate significant growth within the next decade. The detailed trends of this population growth require further assessment. Proximity to other community centres also leaves room for doubt as to whether the identified location is the most advantageous for the majority of residents of South-West Kitchener. The Country Hills Community Centre is approximately 2 km from the proposed YMCA site. Additional information is required to determine the impact of a community facility in Williamsburg on adjacent neighbourhoods. Report No. CSD-06-059 Page 4 Due to the emerging status of South-West Kitchener and the Williamsburg neighbourhood, there is currently little certainty about the social make-up of this community now and in the future. Additional assessment is required to determine whether the proposed site would sufficiently meet the needs of residents in South-West Kitchener. The development of a neighbourhood association would be beneficial to the identification of an optimal community site. 2. Financial Considerations Proposal #1 : October~ 2005 The original Williamsburg Family YMCA proposal asks for a capital contribution of $2 million. A phased in funding approach may be acceptable to RBJ Schlegel as the primary investor in the capital project. The proposed budget asks the City to contribute 240/0 of the overall project cost for a maximum of 160/0 of program space, not all of which is exclusively available to the City. At current square footage costs, allocation for a contribution of $2 million should generate approximately 1 0,000 square feet of space for City programs. This is considering the model followed with the Downtown Community Centre for dedicated space on a 99-year lease and the current cost of $200 per sq ft for facilities construction (not including land acquisition). The current proposal specifies 6,400 sq ft with not all of the space dedicated to City programs. There is no allocated capital funding for this development in the 2006 or subsequent years budgets. Proposal #2: Februarv~ 2006 The first alternative provided in this proposal identifies the City of Kitchener as providing $2 million effectively financed through a 20 year lease operating agreement with the YMCA. The lease could be pre-paid if desired. Additionally, RBJ Schlegel would donate $500,000 toward finishing the adjacent park and structures to complement the YMCA/City of Kitchener community centre. The second alternative identifies that commercial lease rates would be established as part of the direct negotiations between RBJ Schlegel and each specific tenant. Lease rates would be calculated specific to each tenant given the purpose built nature of the space, and the extent of fit-up required. No minimum time period has been identified for the lease agreements. 3. Alignment with the City of Kitchener Resource Centre Model The City of Kitchener has a unique model for providing recreational programs to the community. The essential component of the model is that programs must be matched to the identified needs and capacities of neighbourhoods, and are provided with the support of a growing and strong volunteer base. Neighbourhood associations are a critical component of the success of this model. There is currently no neighbourhood association in the proposed community that City staff could consult to ensure that program design fits the current needs and interests of the community. The development of a community association and support of identified City staff would greatly Report No. CSD-06-059 Page 5 enhance the capacity of the neighbourhood to support program implementation to reflect their unique interests. Existing staff resources lack the capacity to assist with community development initiatives in emerging neighbourhoods. An accessible community space is critical to enable a neighbourhood volunteer base to form and become sustainable. The YMCA proposal includes elements that support flexible and adaptive programming that would allow for community dialogue and growth. However, there is potential for the YMCA programs to result in competition over resident participation once a neighbourhood association has developed the capacity to provide their own programming. Additionally, dialogue would be required to ensure that the YMCA membership requirement would not preclude community members from accessing neighbourhood based programming. Finally, the LFMP has identified the development of a community centre in South-West Kitchener to occur in approximately 2012. Approval of a capital expenditure at an earlier date could potentially affect other neighbourhoods who have been actively working toward meeting the criteria for a community centre as outlined in the LFMP. Any perception of leap-frogging one project over another could be detrimental to the integrity of the process for developing community criteria for community centres. 4. Park Development The original Williamsburg Family YMCA proposal and alternative #1 provided in February 2006 identify that RBJ Schlegel proposes to donate $500,000 towards finishing the adjacent park and structures to tie into the YMCA facility. The facility would be located on Max Becker Drive and directly opposite a neighbourhood park presently under development. A site plan for the potential "developer build" park includes a children's playground, courtyard, weigh scale (or special feature), entry gate and pavilion. Staff suggestions for moving forward A capital investment in a community centre/family YMCA partnership in Williamsburg as outlined in the original proposal (Proposal #1) is not recommended at this time for the following reasons: · There is need for more assessment and community input to identify the optimal community site for a permanent community centre, · There is need to develop community capacity within Williamsburg, · Community Programs and Services existing staff resources lack the capacity to effectively support community development initiatives in emerging neighbourhoods, · The proposed budget asks for a City contribution of 240/0 of the overall project cost for a maximum of 160/0 of program space, not all of which is exclusively available to the City of Kitchener, · The cost per square foot is higher than current cost for facilities construction, · There is no allocated capital funding for this development in the capital budget forecast, · There is a potential for YMCA programs to compete with resident participation in neighbourhood programming initiatives, · The LFMP identifies the development of a community centre in South-west Kitchener in approximately 2012, and · The perception of leap-frogging one project over another could be detrimental to the integrity of the process for developing community criteria for community centres. Report No. CSD-06-059 Page 6 Analysis of the YMCA partnership proposals has resulted in a recommendation to explore the potential to partner with the YMCA and RBJ Schlegel; to lease meeting, office and community space for a multi-year period as a pilot project in the proposed Williamsburg Family YMCA project. The rationale for this recommendation is outlined below. Recommendation Rationale/Option to Consider The YMCA partnership proposal has prompted consideration of how the City of Kitchener supports developing neighbourhoods. Williamsburg is just one of several quickly evolving neighbourhoods that would benefit from staff support to assist in the creation of community capacity building initiatives. To date, staff activities have been primarily reactive, working to support neighbourhoods with identified needs to achieve their goals. The opportunity to take a proactive role has been limited by insufficient staff resources to respond effectively to community growth. The anticipated growth in South-West Kitchener provides an opportunity to take a decidedly more proactive role in the development of emerging neighbourhoods. This, in turn, will result in the involvement of the local community in both short and long-range program delivery and planning initiatives for South-West Kitchener. The benefits of an identifiable community centre are many: it provides a place of assembly for neighbourhood residents; it gives the neighbourhood a sense of identity; it represents an opportunity for services other than traditional leisure programs; it is a concept based on enhanced customer service, better accessibility, stronger community ownership, and identity and stability in supporting neighbourhoods. Therefore, while a capital investment in a shared facility is not recommended for Williamsburg at this time, the availability of a dedicated community space for a short period of time would contribute greatly to the ability of the neighbourhood to develop their capacity. For instance, a five year 'pilot project', commencing late in 2007, at a suggested cost of $50,000 per year would provide an opportunity for evaluation and would position the community to address the proposed Huron Park development and longer-term needs of South-West Kitchener residents. A multi-year lease "pilot" arrangement would provide: · the community with continuity and flexibility to respond easily to the evolving and changing community needs, aspirations and capacities, · time to assess the needs of the community, · evaluate the optimal location of a permanent community centre, · time to evolve and evaluate an ongoing partnership with the YMCA. The YMCA has demonstrated an understanding of the City's approach to community development and supports its central themes. They also understand that any programming provided during the formation of a neighbourhood volunteer base needs to stay flexible and open to change to accommodate community dialogues. Additionally, the YMCA acknowledges the value of meeting identified social needs by developing appropriate social service partners (such as the NCB outreach program). Such service provision can result in stronger volunteer commitments, and create a link between recreation and quality of life in a broader sense. A Report No. CSD-06-059 Page 7 pilot project, multi-year lease arrangement would provide an opportunity to further assess the fit and value to the community of an ongoing partnership between the two organizations. FINANCIAL IMPLICATIONS: The costs associated with a multi-year lease option have not yet been determined. CONCLUSION: A capital investment in the Williamsburg community centre/Family YMCA is not recommended at this time. However, given the rapid growth of South-West Kitchener, and the need for resident involvement in the development of the community, it would be advantageous to support community development initiatives in Williamsburg and other emerging neighbourhoods. The Williamsburg community would benefit from a multi-year lease agreement with the YMCA to facilitate the development and growth of leisure and social service programs to community residents. These initiatives would provide an investment to ensure citizen involvement in the process of both neighbourhood based planning and of long-term development for the Huron Farm project. Mark Hildebrand Interim Director, Community Programs and Services AP