HomeMy WebLinkAboutCSD-07-040 - Williamsburg Community Centre Proposal
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Community Services
Report To:
Date of Meeting:
Submitted By:
Community Services Committee
September 24, 2007
Prepared By:
Mark Hildebrand, Interim Director, Community Programs &
Services (x2687)
Mark Hildebrand, Interim Director, Community Programs &
Services (x2687)
All
Ward(s) Involved:
Date of Report:
Report No.:
Subject:
September 11 , 2007
CSD-07-040
WilliAMSBURG COMMUNITY CENTRE PROPOSAL
RECOMMENDATION:
For Council discussion and direction.
BACKGROUND:
On May 1, 2006, staff brought forward a report (CSD-06-059) which apprised Council of two
proposals, that were received, related to a potential public-private partnership between the
YMCA, RBJ Schlegel Holdings Inc., and the City of Kitchener, for the development of a
community centre/family YMCA facility in the Community of Laurentian West.
Proposa/1
In the first proposal, the City of Kitchener was asked to commit $2 million to a capital investment
as a proportional share of building space. In this initial proposal, it was suggested that the
YMCA would oversee the programming of the facility. The City's 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.
Staff recommended not committing to a $2 million capital investment in a community
centre/family YMCA, as outlined in the first proposal, considering the following:
· There was a need for more assessment and community input to identify the optimal
community site for a permanent community centre;
· There was a need to develop community capacity within Williamsburg;
· There was need for additional staff resources to effectively support community
development initiatives;
Report No: CSD-07-040
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· The proposed budget asked 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 to the City of Kitchener would be higher than current cost for
facilities construction;
· There was no allocated funding for this development in the capital budget forecast;
· There existed a potential for YMCA programs to compete with resident participation in
neighbourhood programming initiatives; and
· The Leisure Facilities Master Plan (LFMP) identifies the development of a community
centre in South-west Kitchener in approximately 2013.
Proposal 2
After significant discussion, a second proposal with two additional project alternatives for a
community centre/family YMCA in the Williamsburg area was brought forward to staff. The first
alternative in this proposal 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 program. This first
alternative was suggesting a 52,000 square foot facility at a total cost of $8M. In this proposal
RBJ Schlegel would enter into a lease agreement with the YMCA for a minimum of 20 years.
The space (35,000 square feet) 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.
RBJ Schlegel would retain 5,000 square feet for lease to complementary health professionals.
The second alternative identified RBJ Schlegel entering into a lease directly with each party so
that the total project was 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 were not interested.
The size of the facility and cost was not provided since the project would depend on the main
tenants and architectural drawings would commence as soon as the main tenants were
committed with firm lease agreements. Commercial lease rates would be established as part of
the direct negotiations with each specific tenant and would be calculated specific to each tenant,
given the purpose built nature of the space, the extent of fit-up required etc.
In the May 2006 report, staff suggested that there was merit to the second proposal and that
dedicated community space in the Williamsburg community, for a short period of time, could
contribute significantly to the ability of the neighbourhood to develop their capacity. As such, in
this report staff suggested consideration of a five year 'pilot project', at a lease cost of
approximately $50,000 per year which 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;
· the time to assess the needs of the community;
· the ability to evaluate the optimal location of a permanent community centre; and
· the time to evolve and evaluate a possible ongoing partnership with the YMCA.
The $50,000 lease cost would not address any staff support needs for the facility such as
administration and custodial services, or utility costs, which would also have to be budgeted for
if this pilot project was considered.
Report No: CSD-07-040
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Staff was directed to investigate the potential for a multi-year lease for meeting, office and
community space in the Williamsburg area and bring back information to Council for
consideration and discussion.
REPORT:
Since the May 2006 report, City of Kitchener staff has met on a number of occasions with RBJ
Schlegel staff, in co-operation with the YMCA and individually to investigate options of leasing
space in the Williamsburg area. Discussions initially surrounded the concept of a building that
was approximately 24,000 square feet, divided into three levels. As will be shown, the cost
associated with this concept was burdensome for the City of Kitchener. A second concept was
discussed between City of Kitchener and RBJ Schlegel staff which looked at investigating the
possibility of renting space in a building scheduled for construction, planned for office/retail
space adjacent to parkland in the community. In this instance there was interest in entertaining
less space and a 5 year lease. Finally, City of Kitchener staff has also identified other options
for providing community support, including space in some instances, in the Williamsburg area
for Council's consideration.
ConceDt 1 - RBJ Schleael buildina a new 24~OOO sauare foot facilitv
The initial concept looked at RBJ Schlegel building a 24,000 square foot facility and the City of
Kitchener leasing a portion of this facility. The facility would be three levels, each level of the
facility was to be approximately 8,000 square feet. The lower garden level would open to the
back parking lot and would be considered for either community space, private office or retail
space, or a combination of both. The first level would be at street level opening to the main
street. Similar to the lower garden level, this space would also be considered for community
programming space, private office or retail space or a combination of both. The third level of the
facility would be allocated as a fitness centre (YMCA) and provide for the necessary locker and
program rooms required for such an operation.
In this initial concept, staff estimated the costs associated with leasing 3,000, 5,000 and 8,000
square feet of facility space. RBJ Schlegel preferred the City of Kitchener to lease one entire
level of the facility (8,000 square feet), however traditionally 3,000 square feet has been
provided to communities as a starting point for a community centre. Although considered a
good starting point for neighbourhood engagement, it is understood that communities quickly
outgrow a 3,000 square foot facility and are limited with the programming they can provide the
community. As such, staff has also provided below a cost associated with leasing 5,000 square
feet, which includes a multipurpose room of approximately 2,400 square feet.
In the analysis of space, it is proposed the following could be provided:
a) In a 3,000 square foot facility
· Meeting/program rooms (2)
· Accessible washroom facilities
· Offices (3)
· Reception area
· Storage
Report No: CSD-07-040 4
b) In a 5,000 square foot facility
. Multi purpose program room
. Meeting/program rooms (2)
. Accessible washroom facilities
. Offices(3)
. Reception area
. Storage
c) In a 8,000 square foot facility
. Multipurpose program room (2)
. Meeting/program rooms (2-3)
. Accessible washroom facilities
. Offices (4)
. Reception area
. Storage
In the initial report provided to Council, staff suggested consideration of a five year 'pilot project',
at a lease cost of $50,000 per year. For this concept, RBJ Schlegel is requesting a minimum
lease term of ten years which would be one-half the amortization period of the facility. As
outlined below, there are distinct lease costs associated with the various floors in the facility.
Although willing to negotiate the space leased to the City of Kitchener, RBJ Schlegel would
prefer to have the community space located on the first (street) level of the facility. There is
significant benefit to having community access to the main street, given the possible programs
that would run from the facility (e.g. youth), and considering accessibility as well as safety and
security. Also, given that lease rates would be less expensive on the garden level, keeping this
open provides greater flexibility for providing affordable space to grass roots businesses that
may complement programs at the facility.
Below are three separate tables which show "C" class cost estimates if the City considered
leasing 3,000, 5,000 or 8,000 square feet. The first table outlines costs associated with leasing
the upper level of the facility, at $25/sq ft. The second table outlines costs associated with
leasing the first (street) level of the facility, at $28/sq ft, and the third table provides costs
associated with leasing the garden level of the facility, at $22/sq ft. Specifically, the tables
below outline the following costs:
i) Lease Costs, including common area maintenance (e.g. exterior maintenance of
facility), taxes and insurance;
Community Services Costs including:
· Salaries and Wages (Part-time District Facilitator, Administration Coordinator and
Community Centre Clerk and Community Centre Attendant staff)
· Administration Expenses
· Materials and Supplies
Facilities Management Costs including:
· Salaries and Wages
· Equipment Reserve Charges
· Materials and Supplies
Utilities Costs
ii)
iii)
iv)
v)
Furnishings, Fixtures and Equipment - this would be a one time cost associated with
providing the necessary equipment and furnishings for use as a community centre.
Report No: CSD-07-040
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Upper level - $25/square foot
Estimated Operating Costs
3000 sq it 5000 sq it 8000 sq it
Lease Costs $ 75,000 $125,000 $ 200,000
Community Services Budget Costs 166, 190 166, 190 166, 190
Facilities Management Costs 24,579 4 1 ,295 49, 1 60
Utilities Costs 6,906 10,775 13,813
Total Estimated Operating Costs $ 272,675 $ 343,260 $ 429,163
Furnishings, Fixtures and Equipment $ 40,000 $ 66,000 $ 1 05,600
Ground level $28/square foot
Estimated Operating Costs
3000 sq it 5000 sq it 8000 sq it
Lease Costs $ 84,000 $140,000 $ 224,000
Community Services Budget Costs 166, 190 166, 190 166, 190
Facilities Management Costs 24,579 4 1 ,295 49, 1 60
Utilities Costs 6,906 10,775 13,813
Total Estimated Operating Costs $ 281,675 $ 358,260 $ 453,163
Furnishings, Fixtures and Equipment $ 40,000 $ 66,000 $ 1 05,600
Garden level - $22/square foot
Estimated Operating Costs
3000 sq it 5000 sq it 8000 sq it
Lease Costs $ 66,000 $ 11 0,000 $ 176,000
Community Services Budget Costs 166, 190 166, 190 166, 190
Facilities Management Costs 24,579 4 1 ,295 49, 1 60
Utilities Costs 6,906 10,775 13,813
Total Estimated Operating Costs $ 263,675 $ 328,260 $ 405,163
Furnishings, Fixtures and Equipment $ 40,000 $ 66,000 $ 1 05,600
As outlined in the tables above, it was not possible to meet the minimum space requirements of
3,000 square feet, traditionally provided for a community centre, at a lease cost of $50,000. If
we were to consider providing the minimum space to the Williamsburg community, through a
leasing arrangement, the minimum cost would be approximately $66,000, leasing the garden
level of the facility. Within this scenario, staff is also suggesting there would be an additional
one time cost of $40,000 for furnishings, fixtures and equipment and an additional $197,675 in
staff support and facility operating costs.
Conceot 2 - Leasina soace in a buildina alreadv scheduled for construction
The second concept investigated the City of Kitchener leasing space in a building that is already
scheduled for construction by RBJ Schlegel, planned for office/retail space and adjacent to
parkland in the community. This facility would only have two levels, upper and ground, for
lease. In this instance, RBJ Schlegel would be interested in entertaining a 5 year lease.
Report No: CSD-07-040
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In the interest of keeping lease costs to $50,000, staff estimated the costs associated with
leasing 1 ,500 2,000 and 5,000 square feet of facility space. In the analysis of space, it is
proposed the following could be provided in 1 ,500 and 2,000 square feet of space:
· Meeting/program rooms (2)
· Accessible washroom facilities
· Offices (2)
· Reception area
· Storage
It has been recognized, in the instance of the Kingsdale community centre (CSD-05-158) that it
is very difficult for a community to operate and grow programs out of 1 ,500 square feet. As
mentioned above, traditionally 3,000 square feet has been provided to communities as a
starting point for a community centre.
Below are the "C" class cost estimates if the City considered leasing 1 ,500, 2,000 or 5,000
square feet. The first table outlines costs associated with leasing the upper level of the facility,
at $25/sq ft, the second table outlines costs associated with leasing the first (street) level of the
facility, at $28/sq ft.
* Upper level - $25/square foot
Estimated Operating Costs
1,500 sq it 2,000 sq it 5,000 sq it
Lease Costs $ 37,500 $ 50,000 $ 125,000
Community Services Budget Costs 1 66, 190 1 66, 190 166, 190
Facilities Management Costs 12,400 16,600 41 ,300
Utilities Costs 3,500 4,650 10,775
Total Estimated Operating Costs $ 219,590 $ 237,440 $ 343,265
Furnishings, Fixtures and Equipment $ 30,000 $ 40,000 $ 66,000
* Ground level $28/square foot
Estimated Operating Costs
1,500 sq it 2,000 sq it 5,000 sq it
Lease Costs $ 42,000 $ 56,000 $ 140,000
Community Services Budget Costs 1 66, 190 1 66, 190 166, 190
Facilities Management Costs 12,400 16,600 41 ,300
Utilities Costs 3,500 4,650 10,775
Total Estimated Operating Costs $ 224,090 $ 243,440 $ 358,265
Furnishings, Fixtures and Equipment $ 30,000 $ 40,000 $ 66,000
Other options to support the Community
It has been acknowledged by staff that there is merit to providing support to a community that is
in its infancy. However there may also be other options that can be considered to provide this
support, besides entering into a lease agreement, as outlined above. Staff also investigated 3
additional options and includes:
Option 1: Providing the necessary staffing resources to begin animating the community without
building or leasing a facility;
Option 2: Purchasing a 3,000 square foot portable; and
Option 3: Relocating the Kingsdale portables to the Williamsburg Community in 2010.
Report No: CSD-07-040
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In the instance of options two and three which include the consideration of portables, it should
be noted that there is only two viable pieces of land to locate in the Williamsburg community,
which is City owned, including Voisin Park and Williamsburg Commons. Estimated costs below
do not include the cost of land and would have to be added for locations other than those
mentioned above.
Option 1: Providing the necessary staffing resources to begin animating the community without
building or leasing a facility.
Although the advantages of having dedicated space as a neighbourhood hub could contribute
significantly to animating the community, even more important is having the appropriate staff
resources to facilitate this development. At present, Community Programs and Services does
not have the staff resources to provide any extended support for neighbourhood development in
the south end of Kitchener. If any issues occur in these developing neighbourhoods, at the
present, staff from other areas of the City are called upon to assist.
If the City would like to consider early consistent support to this community, then at the very
least a part time District Facilitator and support staff would be needed. It is anticipated that one
full time District Facilitator and support staff will be required in 201 0 in anticipation of the
expected south end community centre to be built in 2013. Until this time, the City could
consider providing a part-time District Facilitator, and support staff, at an approximate cost of
$167,000. In the absence of dedicated facility space, the District Facilitator would work with the
Neighbourhood on their development utilizing schools and churches in the community, similar to
fledgling neighbourhoods in the past.
Option 2: Purchasing a 3,000 square foot portable
Currently, the City of Kitchener does not have any available portables in inventory that could be
utilized as dedicated community space in the Williamsburg Area, and would have to purchase if
they were to be considered an option for dedicated community space. The total approximate
cost of purchasing 3,000 square feet of portable space is $75,000. Other costs associated with
purchasing and locating the portables in the area include: $8,000 for moving the portables,
$35,000 for interior renovations, $50,000 - $75,000 for site preparations and services
(depending on the site), $20,000 for permits and contingencies, and $40,000 for furniture and
fixtures. The total cost ("C" class estimate) of placing a 3,000 square foot portable in the
Williamsburg community would be between $228,000 - $253,000, excluding land costs.
In addition to capital costs, staff estimates an operating cost of approximately $197,675 for staff
support and facility operating costs.
Option 3: Relocating the Kingsdale portables to the Williamsburg Community in 201 O.
The City of Kitchener has a unique asset in the Kingsdale portables, considering the square
footage and its construction. The module is made up of 6 single portable units of 720 square
feet each, and is divided up into a number of different programming and meeting spaces for the
community. The interior walls and ceilings are constructed of drywall, along with the appropriate
millwork and fixtures to provide for the necessary facilities including a kitchen, offices,
washrooms etc. The overall facility space of 4,390 square feet has provided exceptional
flexibility and opportunity for growth and development of the Kingsdale Community and, before
that, the Chandler-Mowat Community. There is an opportunity for relocating this existing
module in 201 0, upon completion of the new Kingsdale Community Centre. The total cost of
relocating the Kingsdale portables ("C" class estimate in 2007 dollars) is $425,000 excluding
land costs. Site preparation Work/Services is estimated at $200,000, interior renovations
$95,000, contingencies and permits $70,000 and furnishings and fixtures $66,000.
Report No: CSD-07-040
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In addition to capital costs, staff estimates an operating cost of $218,265 for staff support and
facility operations.
Below are the "C" class cost estimates associated with the three additional options considered
by staff. Also provided in the chart, for comparison purposes, are the costs associated with
leasing a similar space in the Williamsburg area (at $25 per square foot). The second chart
below projects the total operating and capital costs over five and ten years for each option.
lease Other Options
lease 3,000 lease 5,000 Provide Purchase Relocate
Ki ngsdale
sq ft Upper sq ft Upper only Staff 3,000 sq ft Portables
level level Resources Portable 2010 (2007 $)
Operating Costs
Lease Costs 84,000 140,000 0 0 0
Community Services 1 66, 1 90 1 66, 1 90 1 66, 1 90 1 66, 1 90 1 66, 1 90
Costs
Facilities Management 24,579 41 ,295 0 24,579 41 ,300
Costs
Uti I ities Cost 6,906 $10,775 0 6,906 10,775
Total Operating Costs $281,675 $358,260 $166,190 $197,675 $218,265
Capital Costs
Purchase Portables $0 $0 $0 $75,000 $0
Site Preparation Work 0 0 0 83,000 200,000
and Services
I nterior Renovations 0 0 0 35,000 95,000
Contingencies and 0 0 0 20,000 65,000
Permits
F urn itu re and Fixtu res 40,000 66,000 0 40,000 65,000
Total Capital Costs $40,000 $66,000 $0 $253,000 $425,000
Cost Projections over 5 and 10 years
lease Other Options
lease 3,000 lease 5,000 Provide Purchase Relocate
Ki ngsdale
sq ft Upper sq ft Upper only Staff 3,000 sq ft Portables
level level Resources Portable 2010 (2007 $)
5 year term - Costs
Operating 1 ,408,375 1 ,791 ,300 $830,950 988,375 1,091,325
Capital 40,000 66,000 0 253,000 425,000
Total $1,448,375 $1,857,300 $830,950 $1,241,375 $1,516,325
10 year Term
Operating 2,816,750 3,582,600 1 ,661 ,900 1,976,750 2,182,650
Capital 40,000 66,000 - 253,000 425,000
Total $2,856,750 $3,648,600 $1,661,900 $2,229,750 $2,607,650
Report No: CSD-07-040
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Alignment with the City of Kitchener Community Resource Centre Model
In the Leisure Facilities Master Plan (LFMP), recommendation 18 outlines the development
criteria and strategies for community resource centres. This recommendation provides
supportive direction in regards to the development of community resource centres (the facilities)
in mature neighbourhoods. The criteria outlined in the recommendation suggest the following:
· The group proposing a centre must have a minimum of five to seven years of successful
and sustainable local program delivery operations using schools, churches, arenas and
other facilities;
· An identifiable core of ten to fifteen committed volunteers needs to be demonstrated, who
have been active for a minimum of one to two years;
· A definable neighbourhood or service area is evident that does not infringe on other defined
service areas, creates undue overlaps, etc.;
· Additions to existing resource centres should not occur until reasonable utilization of service
area schools, churches, club houses and other facilities have been explored and utilized
were possible; and
· Any new resource centre, involving a permanent structure, and any addition over $250,000
should have a Business Plan completed involving the community / neighbourhood
association and the city in a partnership.
Although the LFMP provides specific requirements for Community Resource Centres in mature
neighborhoods, it does not speak to proactive approaches to Community Development (e.g.
program and service development and delivery), or facility development in emerging
neighborhoods such as Williamsburg. From the facility development that has occurred since
2000, there is an understanding of the basic facility components necessary to meet the needs of
a neighbourhood including: a multipurpose room/gym; several smaller program/meeting rooms,
service delivery areas for Neighbourhood Associations and/or partner groups, and kitchen area.
The sizes and arrangement of these components are largely determined by the amenities in the
area, possible community partnerships, and population size of the area the facility serves.
The proposals in this report provide the City of Kitchener the opportunity to engage in a
proactive approach to program and service delivery in a newly emerging neighbourhood. There
are advantages to considering the development of a Community Resource Centre as a
neighbourhood hub during the infancy of new subdivisions. An accessible community space
could be critical to enable a neighbourhood volunteer base to form and become sustainable.
This proposal includes elements that support flexible and adaptive programming that would
allow for community dialogue and growth.
As outlined in the initial report (CSD-06-059), proximity to other community centres has to be
considered when evaluating if the identified location, in the Williamsburg area, 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 site. The introduction of the
Williamsburg Community Centre could potentially impact programs in the adjacent
neighbourhoods and may not be considered the most central location in this area of the city.
The LFMP has identified the development of a community centre in South-West Kitchener to
occur in approximately 2012. Approval of a capital and/or operating expenditure at an earlier
date could potentially affect other neighbourhoods who have been actively working toward
meeting the criteria for a new community centre or a community centre expansion as outlined in
the LFMP. Any perception of "Ieap-frogging" one project over another could be detrimental to
the integrity of the process for developing community criteria for community centres.
Report No: CSD-07-040
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FINANCIAL IMPLICATIONS:
Considering the cost estimates associated with the various options in this report, staff is
requesting further direction from Council on how to proceed. At present there are no operating
dollars allocated for the Williamsburg area for Neighbourhood Development. There is
$4,519,000 allocated over 2013 and 2014 for a Community Centre scheduled for the south end
of Kitchener.
Mark Hildebrand
Interim Director, Community Programs and Services
AP