HomeMy WebLinkAboutDTS-09-026 - Civic District Parking Structure Business CaseKITC~IV R
Development &
Technical Services
Report To: Finance & Corporate Services Committee
Date of Meeting: March 2, 2009
Submitted By: John McBride
Prepared By: Jeff Willmer, Dan Chapman, Rod Regier, John McBride
Ward(s) Involved: Bridgeport-Centre Ward (1)
Date of Report: February 25, 2009
Report No.: DTS 09-026
Subject: Civic District Parking Structure Business Case
RECOMMENDATIONS:
That the development of an underground parking structure with 412 parking spaces, more or less,
as part of the Kitchener Public Library Main Branch expansion be approved; and further,
That the City issue a Letter of Understanding to the Province of Ontario, to The Regional
Municipality of Waterloo, and to the Kitchener Public Library outlining the commitment of the City
to this project and secure written confirmation of the commitment of each organization to this
project; and further,
That a coordinated request for proposal for engineering/architectural services that would combine
the expansion of the Kitchener Public Library Main Branch and the development of an
underground parking structure with 412 parking spaces, more or less, be developed and
circulated to qualified firms; and further,
That a recommendation be brought back to Council for approval of the award of the request for
proposal for architectural/engineering services; and further,
That Staff be directed to undertake a broader public visioning exercise for the Civic District lands
and report back to Council with the results, including options for the area above the underground
parking structure.
EXECUTIVE SUMMARY:
Three separate developments in the Civic District area have created a demand for parking that can not be
efficiently met within each individual development. The expansion of the Kitchener Public Library will
create the need for 112 parking spaces, the Provincial Courthouse will require 200 staff parking spaces
and the expansion of Regional offices into the Waterloo County Courthouse building will create a demand
for an additional 100 spaces.
Sufficient land area does not permit the development of surface parking for any of these projects. A
number of potential parking options were considered to address this demand and the opportunity exists
through a four way partnership to cooperatively develop a 412 space underground parking structure
under the library expansion and into a portion of Lot 19, which is the surface parking lot that serves the
Centre in the Square.
Cash contributions of $7,000,000 by the Province, $4,500,000 by the Region and $4,845,000 by the
Kitchener Public Library will provide a significant and sufficient financial contribution to allow the net
revenues from other users of this facility to pay the operating and the majority of the development costs
Construction of the underground garage will need to be coordinated with the construction of the Library
expansion and must be completed by 2012 to support the anticipated opening of the new courthouse.
The expansion of the existing park or the development of an urban square above the underground
parking structure will be complimentary to the surrounding land uses as well as the residential
neighbourhood. The design allows for the expansion of the garage upon development of additional uses
in the future. Two distinct development parcels have been identified and allow for future buildings.
A portion of Regional property that is currently used for Police parking will need to be transferred to the
City to allow for the optimization of the land parcel. In addition, a small portion of the treed area within the
park will need to be developed as surface parking to help offset the loss of existing surface parking, but
also in an area that will eventually be developed as a future building site. The park expansion or urban
plaza will more than compensate for the loss of this area.
A functional design and tender package will need to be prepared in 2009 with construction commencing
in 2010 and completion by 2012. A request for proposals will be developed in coordination with the
Kitchener Public Library expansion and the project tendered in the normal manner.
Funding for this project will be a combination of the cash contributions from the Province, the Region and
Kitchener Public Library along with a debenture for the remaining costs.
BACKGROUND:
Mackenzie King Square and the Civic District have long been identified as the cultural and administrative
centre of the region. It is defined as the block bound by Queen St, Ellen St, Frederick St and Weber St.
As far back as the 1960's, concepts were developed that showed local government, courts, cultural
facilities and public areas that served the neighbourhood, the Downtown and the region. It also did not
include any surface parking in that vision.
While the Waterloo County Court, Revenue Canada, Police Headquarters and the Kitchener Public
Library had all been located within these boundaries for a number of years, expansion of the
administrative and cultural facilities continued with the development of the Provincial Court in the 1970's,
the Centre in the Square (CIS) in 1980 and the Regional Headquarters in 1994.
City operated surface parking lots meet the majority of existing demand for this area with 48 spaces
located in Lot 4 behind the Library, 181 spaces located in Lot 19 between Ahrens St and the Centre in the
Square and another 51 spaces located in Lot 14 off of Otto St. These parking spaces offer a combination
of both short term and long term monthly spaces for users of these facilities. In addition, the CIS has 77
surface spaces reserved for their use, Revenue Canada has 53 surface spaces behind their building, the
Provincial Court has approximately 75 spaces in an underground structure and the Region has 214
spaces in two levels of underground parking beneath the Regional Headquarters.
2
All of these lots are very heavily used with occupancy reaching 85 - 100% on numerous occasions each
weekday. In addition, evening use by events at the CIS also generate a demand that can fill all existing
spaces and spill into the adjacent residential neighbourhood. There is no ability to accommodate greater
demand for parking given the limited supply of spaces.
In 2006 and 2007, Civic District stakeholders engaged with the City of Kitchener and the local community
in a process that established a vision for the Civic District as a centre of cultural and educational life of the
community. Design principles were developed and an urban design charrette was held to articulate the
Vision of the District. Public open space and the elimination of surface parking were two of the main
concepts developed.
Ci-ric District
The City has been approached by three separate potential partners to assist in resolving an existing
shortage of parking in the area as well as accommodate additional parking to meet the demands of new
developments in the area.
The three potential partners are the Kitchener Public Library, who need 112 spaces to satisfy the parking
demand that will result from their proposed expansion, the Region of Waterloo, who need 100 spaces to
meet growing staff needs as well as the refurbishment of the Waterloo County Courthouse into office
space once the Province relocates to the new courthouse and the Ministry of the Attorney General who
requires 200 spaces to meet their zoning bylaw requirements as part of the development of the new
Provincial Courthouse.
REPORT:
Detailed design of the Kitchener Public Library Main Branch expansion project is currently on hold until a
design solution can be found for its parking requirements of 112 spaces. Funds have been allocated for
structured parking, but no viable design solutions have been found for an independent parking structure
that meets the needs of the Library and supports the vision for the District.
The Province has recently expressed a strong desire to locate all staff parking for the new Provincial
Courthouse, except judiciary, off site as a security measure. The City has strongly resisted this solution
arguing that the Courthouse site is sufficient to contain the 200 spaces required for Courthouse staff.
Nevertheless, the Ontario Realty Corporation (ORC) has been directed to find alternatives and, to this
end, have completed the conceptual planning of a four storey aboveground parking structure on
Provincially owned property at the corner of Otto and Frederick Sts across from Suddaby Elementary
School. The ORC has also suggested that they would consider acash-in-lieu of parking arrangement
should the City be prepared to construct and manage the required 200 spaces.
4
Region of Waterloo staff have expressed an interest in financing the construction of 100 spaces as part of
a combined parking structure in Civic District in conjunction with the Library development to
accommodate existing staff as well as the future relocation of staff to the Waterloo County Courthouse,
which the Region owns.
The three new developments within or adjacent to Mackenzie King Sq area have limited opportunity to
develop sufficient parking to meet their needs in a manner that is supportive of the vision for the area.
Expansion of surface parking is not feasible without either removing buildings or paving over what
precious little parkland exists. Above grade parking structures, can be made to blend in and be visually
supportive of surrounding uses, but hamper the ability for mixed use developments. They also eliminate
the opportunity to develop additional public open space in an area that has limited public space to begin
with.
Parking Options
A number of options have been investigated including:
1 Do nothing. Advise the Province, the Region and the Library that the City is not interested in
developing additional parking in the Civic District.
2 Separate above ground structures are developed by each organization
3 City, Region and Province construct above ground parking structure on Lot 19
4 City, Region and Province construct below ground structure on Lot 19
5 City, Region and Province build structure between Centre in the Square and 200 Frederick St
6 City, Region and Province build underground structure under Otto St.
As a result of the analysis further outlined in the business case, Option 4 was deemed to provide the best
design to meet the parking requirements of surrounding users as well as satisfy the vision for the Civic
District.
There is an opportunity to partner with the Province of Ontario, the Region of Waterloo, the Kitchener
Public Library and the City to cooperatively develop an underground parking structure that will meet the
needs of these developments, satisfy evening parking demands from the CIS and begin to develop the
vision for Mackenzie King Sq by starting to eliminate surface parking and replace it with a 412 space
underground parking structure.
A design alternative has been developed that combines the parking requirements of all three
organizations in a three level underground parking structure adjacent to the existing Region of Waterloo
parking structure and under the addition to the new Library expansion. This alternative supports the
vision and design guidelines of the Civic District by beginning the process of removing the surface parking
within the District. It sets the stage for the implementation of the vision established initially in the 1960s
and recently updated by District stakeholders. The proposed solution establishes Phase 2 in what will
ultimately become a fully integrated 4 phase underground parking structure on Civic District as
appropriate projects, partnerships and funds become available. It helps define two additional building
sites within the District for incremental implementation of the long term vision.
This concept also permits the expansion of public open space on what is essentially the roof of the
parking structure in an area that is currently surface parking. The development of additional green space
or an urban plaza that can be programmed or used by the Library and other uses in the area will also
benefit the neighbourhood.
Upon Council approval to proceed with this project, a consultant will be engaged to prepare a design for
the parking structure in conjunction with the Kitchener Public Library Main Branch expansion. The design
will also consider a connection to the Regional Headquarters parking structure which has a knockout wall
on the P2 level. This element was incorporated into the Regions parking structure in anticipation of the
eventual expansion of underground parking in this area. It is projected that a full two years will be
required to construct the garage with an opening at the end of 2011. The timing of construction will be
suitable for all three intended users.
While this would be a City parking structure, a stakeholder working group will be formed to ensure that all
contributing parties and ultimately end users have their needs met during the design, construction and
operation of this structure. A multidisciplinary team will be formed at various stages to develop,
coordinate and oversee the construction of this garage.
A small portion of Regional land that is directly behind Police Division #1 at 134 Frederick Street and
Regional Headquarters at 150 Frederick Street will need to be transferred to the City to allow the
optimization of the parking structure design. The surface area can be returned to parking for the Police
once the construction is competed.
While the construction of a 412 space below ground parking structure is estimated at $18,540,000, there
will be additional work required to complete the project.
6
,~ ~ ~ ~ ~ ~~ Civic District -Underground Parking Concept
~, ~ ' ~-~
~~ ~_
~s,~
_.~ "
~~ i~„~ . .
*", kd
Civic District Future Development
While the vision for Mackenzie King Sq has been developed with area stakeholders, it hasn't yet been
vetted by the larger community. A public consultation process is necessary to ensure community support
and endorsement of the long term development of the area.
As part of the long term vision for the Civic District, provision is being made for the development of
additional buildings in the areas currently being occupied by surface parking. These areas would also
have underground parking developed at that time. In order to accommodate this parcel, a small portion of
the treed area will need to be developed for surface parking now to help offset the loss of existing surface
parking, but also provide for this future building site. The park expansion or urban plaza above the
underground garage will more than offset the loss of this area.
~_
,~~
~~
7
The public square or urban plaza concept for the roof of the parking structure has not been included in
the design or cost estimates for the structure. This concept needs to be developed as part of the
visioning exercise and budgeted for accordingly.
Time Constraints
The construction of an underground garage as part of the Library expansion can be accomplished within
a reasonable time frame to meet everyone's needs. The Courthouse is expected to be operational by
2012, the Library expansion is expected to be open by 2013 and the Waterloo County Courthouse will be
refurbished after the Provincial Court opens to allow additional Regional staff to locate in this area.
We anticipate the following time frame for development of the underground parking structure.
May 2009 -Consultant selection & design
February 2010 -Tender project
April 2010 -Award tender
June 2010 -Construction begins
December 2011 -Parking structure completed and operational
This time frame, while tight, is achievable provided that we start immediately.
FINANCIAL IMPLICATIONS:
The attached business case fully outlines the anticipated cost of construction along with projected
revenues and expenses. While it is based on the knowledge of two separate garage designers, until a
tender is let, the exact price will not be known.
The Civic District Parking Structure would consist of 412 spaces with a total estimated capital cost of
$18,540,000. The City anticipates funding $16,345,000 of the capital cost out of direct capital
contributions and cash-in-lieu of parking revenues, leaving $2,194,992 to be financed by the City of
Kitchener. The revenue and expenses are estimated to increase annually by 3.0%, except for the 20
year annual debenture payment of $182,323 which is based on a projected interest rate of 5.50% and
does not increase annually. The net levy impact is determined to be 0.02% in the first year of operation in
2012, which will vary depending on final construction costs, actual inflation/rate increases and the
debenture interest rate.
Although the pro forma budget shows a small projected annual funding shortfall for the first three years,
the net revenues show a surplus in year four. Upon payment of all outstanding debt, the facility will
generate projected annual net revenue of approximately $300,000.
The following significant assumptions are reflected in the pro forma budget:
• Existing surface lot will be relocated to the treed area on the site and the cost is included in the
overall project budget
• Utilization level for the existing surface lot will not change
• No funding is included for the development of an urban square
• No major environmental or relocation of service issues will be encountered
• The Region of Waterloo will provide land at no cost to the City of Kitchener
• There will be full utilization of the monthly parking spaces allocated to the Province of Ontario and
there will be a utilization of 2 patrons per day in the hourly spaces
• Interest rates will not increase significantly over the next two years
The construction cost of $45,000 per space, which includes engineering fees, project
management, etc, has been based on cost estimates from a current similar project with two levels
of underground parking and a library above.
A second cost estimate by the engineering firm who designed the Charles & Benton parking
structure, suggests that the $45,000 per space is reasonable, but that engineering, project
management and other fees would be extra. In this scenario, expenses would be:
Construction @ $45,000 per space $18,540,000
Engineering/Architectural fees @ 6% $ 1,112,000
Surrounding infrastructure improvements, sidewalks, lighting $ 200,000
Parking equipment $ 190,000
Public art @ 1 % $ 185,000
Project management @ 1 % $ 185,000
Total $20,412,000
Equates to $49,543 per space
This cost could be considered an extreme upper limit since a portion of the garage roof
would be attributed to the Library and a portion of the engineering/architectural fees and
surrounding improvements would also be attributed to the Library. The current economic
climate should also temper tender prices.
• The estimated costs have been based on the exact number of spaces required. The actual
design of the structure may have slightly more or less spaces due to ramping, footprint area, etc
which may impact the final cost slightly.
COMMUNICATIONS:
The design of the underground parking structure will be developed in conjunction with the Kitchener
Public Library expansion and will be presented as part of any public process associated with that project.
The creation of the vision for Mackenzie King Sq and the development of concepts for the surface
treatment above the parking structure is a separate project. It will follow a public process with not only
stakeholders of the surrounding properties, but also the larger neighbourhood over the next few months
and will come back to Council later this spring.
CONCLUSION:
In order to ensure an efficient and reasonable development of parking to meet the demands of the
Province, Region and Library, as well as support the vision for the Civic District, the development of an
underground parking structure is the best solution to meet all needs.
Cash contributions of $7,000,000 by the Province, $4,500,000 by the Region and $4,845,000 by the
Kitchener Public Library will provide a significant and sufficient financial contribution to allow the net
revenues from other users of this facility to pay the operating and the majority of the development costs.
The inclusion of an expanded park or urban plaza will contribute to increased activity, surveillance and
use of the site. This will be supportive of not only the adjacent developments but also the greater
neighbourhood.
As a result, it is recommended that a 412 space underground parking structure be developed in the Civic
District in conjunction with the expansion of the Main Branch of the Kitchener Public Library.
9
In order to meet the timelines for development of the Courthouse, the Library and the Region, design
must start immediately with construction commencing in the spring of 2010 with completion by December
2011.
Jeff Willmer
Acting General Manager,
Development & Technical Services
John McBride
Director of Transportation Planning
Dan Chapman
General Manager,
Financial Services
Rod Regier
Executive Director
Economic Development
10
FEBRUARY 25, 2009
Development & Technical Services
Business
Civic District Parking structure
,_
Template by Project Administration July 2002
Revised July 2007
Table of Corrtents
Executive Summary .....................................................................................................................3
Background ................................................................................................................................ .. 4
Problem /Opportunity ............................................................................................................................................................................................... .... 5
Current Situation ....................................................................................................................................................................................................... .... 5
Project Description ..................................................................................................................... ..6
Project Description .................................................................................................................................................................................................... .... 6
Objectives ................................................................................................................................................................................................................. .... 6
Scope ........................................................................................................................................................................................................................ .... 6
Stakeholders ............................................................................................................................................................................................................. .... 7
Strategic Alignment .................................................................................................................... .. 8
Environment Analysis ................................................................................................................ .. 9
Project Risk Assessment ........................................................................................................... 11
Risk of Project and each Alternative (Not including Status Quo) ............................................................................................................................ ..11
Risk of Not Proceeding with Project (Status Quo) ................................................................................................................................................... ..12
Cost/Benefit Analysis ................................................................................................................. 13
Quantitative Analysis -Financial Cost &Benefit :.................................................................................................................................................... ..13
Qualitative Analysis -Non-Financial Benefits &Costs :.......................................................................................................................................... .. 15
Conclusions ..................................................................................................................................................................................... 16
2
Civic District Parking Structure
Three separate developments in the Civic District area have created a demand for parking that can not be
efficiently met within each individual development. The expansion of the Kitchener Public Library will create the
need for 112 parking spaces, the Provincial Courthouse will require 200 staff parking spaces and the expansion
of Regional offices into the County Courthouse building will create a demand for an additional 100 spaces.
Sufficient land area does not permit the development of surface parking for any of these projects. The
opportunity exists through a four way partnership to cooperatively develop a 412 space underground parking
structure under the Library expansion and into a portion of Lot 19, which is the surface parking lot that serves the
Centre in the Square.
Cash contributions of $7,000,000 by the Province, $4,500,000 by the Region and $4,845,000 by the Library will
provide a significant and sufficient financial contribution to allow the net revenues from other users of this facility
to pay the operating and the majority of the development costs.
Construction of the underground garage will need to be coordinated with the construction of the Library
expansion and must be completed by 2012 to support the anticipated opening of the new courthouse.
A number of potential parking options were considered to address this demand and the preferred option is to
construct a 412 space underground structure beneath the Library expansion and a portion of an existing surface
parking lot.
The expansion of the existing park or the development of an urban square will be complimentary to the
surrounding land uses as well as the residential neighbourhood. The parking garage design expands on the
existing Regional Headquarters garage and allows for the expansion of the garage upon development of
additional uses in the future. Two distinct development parcels have been identified for future buildings with
parking structures below.
A portion of Regional property that is directly behind Police Division #1 at 134 Frederick Street and Regional
Headquarters at 150 Frederick Street will need to be transferred to the City to allow for the optimization of the
land parcel. In addition, a small portion of the treed area within the park will need to be developed as surface
parking to help offset the loss of existing surface parking, but also in an area that will eventually be developed as
a future building site. The park expansion or urban plaza will more than compensate for the loss of this area.
A functional design and tender package will need to be prepared in 2009 with construction commencing in 2010
and completion by 2012. A request for proposals will be developed in coordination with the Library expansion
and the project tendered in the normal manner.
Funding for this project will be a combination of the cash contributions from the Province, the Region and Library
along with a debenture for the remaining costs.
3
Civic District Parking Structure
Mackenzie King Square and the Civic District has long been identified as the cultural and administrative centre of
the region. It is defined as the block bound by Queen St, Ellen St, Frederick St and Weber St. As far back as
the 1960's, concepts were developed that showed local government, courts, cultural facilities and public areas
that served the neighbourhood, the Downtown and the region. It also did not include any surface parking in that
vision.
While the Waterloo County Court, Revenue Canada, Police Headquarters and the Kitchener Public Library had
all been located within these boundaries for a number of years, expansion of the administrative and cultural
facilities continued with the development of the Provincial Court in the 1970's, the Centre in the Square (CIS) in
1980 and the Regional Headquarters in 1994.
City operated surface parking lots meet the majority of existing demand for this area with 48 spaces located in
Lot 4 behind the Library, 181 spaces located in Lot 19 between Ahrens St and the Centre in the Square and
another 51 spaces located in Lot 14 off of Otto St. These parking spaces offer a combination of both short term
and long term monthly spaces for users of these facilities. In addition, the CIS has 77 surface spaces reserved
for their use, Revenue Canada has 53 surface spaces behind their building, the Frederick St Courthouse has
approximately 80 spaces of underground parking and the Region has 214 spaces in two levels of underground
parking beneath the Regional Headquarters. In addition, a number of staff and visitors park elsewhere in the
surrounding area.
All of these lots are very heavily used with occupancy reaching 85 - 100% on numerous occasions each
weekday. In addition, evening use by events at the CIS also generate a demand that can fill all existing spaces
and spill into the adjacent residential neighbourhood. There is no ability to accommodate greater demand for
parking given the limited supply of spaces.
In 2006 and 2007, Civic District stakeholders engaged with the City of Kitchener and the local community in a
process that established a vision for the Civic District as a centre of cultural and educational life of the community.
Design principles were developed and an urban design charrette was held to articulate the Vision of the District.
Enhanced public open space and the elimination of surface parking were two of the main concepts developed.
The City has been approached by three separate potential partners to assist in resolving an existing shortage of
parking in the area as well as accommodate additional parking to meet the demands of new developments in the
area.
The three potential partners are the Kitchener Public Library, who need 112 spaces to satisfy the parking
demand that will result from their proposed expansion, the Region of Waterloo, who need 100 spaces to meet
growing staff needs as well as the refurbishment of the Waterloo County Courthouse into office space once the
Province relocates to the new courthouse and the Ministry of the Attorney General who requires 200 spaces to
meet their zoning bylaw requirements as part of the development of the new Provincial Courthouse in addition to
parking provided on the courthouse site and in the proposed Charles and Benton parking garage.
4
Problem /Opportunity
Three new developments in the Mackenzie King Sq area are attempting to find solutions to satisfy their increased
parking demand. There is no opportunity to expand surface parking in the area without removing building stock
or paving green space.
There is an opportunity to partner with the Province of Ontario, the Region of Waterloo, the Kitchener Public
Library and the City to cooperatively develop an underground parking structure that will meet the needs of these
developments, satisfy evening parking demands from the CIS and begin to develop the vision for Mackenzie
King Sq by starting to eliminate surface parking and replace it with a 412 space underground parking structure.
The development of an underground structure in this location would not only physically connect to the Region's
underground structure, but also lay the framework for future expansion of underground parking as additional
portions of the site are developed in the future. Care has been taken to ensure that two additional building sites
are protected for future development.
This concept also permits the expansion of public open space on what is essentially the roof of the parking
structure in an area that is currently surface parking. The development of additional green space or an urban
plaza that can be programmed or used by the Library and other uses in the area will also benefit the
neighbourhood.
Current Situation
The three new developments within and adjacent to the Mackenzie King Sq area have limited opportunity to
develop sufficient parking to meet their needs in a manner that is supportive of the vision for the area. Expansion
of surface parking is not feasible without either removing buildings or paving over what precious little parkland
exists. Above grade parking structures, can be made to blend in and be visually supportive of surrounding uses,
but hamper the ability for mixed use developments. They also eliminate the opportunity to develop additional
public open space in an area that has limited public space to begin with.
Detailed design of the KPL Central Library project is currently on hold until a design solution can be found for its
parking requirements of 112 spaces. Funds have been allocated for structured parking, but no viable design
solutions have been found for an independent parking structure that meets the needs of the library and supports
the vision for the District.
The province has recently expressed a strong desire to locate all staff parking for the new Provincial Courthouse,
except judiciary, off site as a security measure. The City has strongly resisted this solution arguing that the
Courthouse site is sufficient to contain the 200 spaces required for Courthouse staff. Nevertheless, the Ontario
Realty Corporation (ORC) has been directed to find alternatives and, to this end, have completed the conceptual
planning of a four storey aboveground parking structure on Provincially owned property at the corner of Otto and
Frederick Sts across from Suddaby Elementary School. The ORC has also suggested that they would consider
a cash-in-lieu of parking arrangement should the City be prepared to construct and manage the required 200
spaces.
Region of Waterloo staff have expressed an interest in financing the construction of 100 spaces as part of a
combined parking structure in Civic District in conjunction with the Library development to accommodate future
addition of staff and relocation of staff to the Waterloo County Courthouse, which the Region owns.
5
Project Description
A design alternative has been developed that combines the parking requirements of all three organizations in an
underground parking structure adjacent and potentially connected to the existing Region of Waterloo parking
structure and under the addition to the new Library expansion. This alternative supports the vision and design
guidelines of the Civic District by beginning the process of removing the surface parking within the District. It sets
the stage for the implementation of the vision established initially in the 1960s and recently updated by District
stakeholders. The proposed solution establishes Phase 2 in what will ultimately become a fully integrated 4
phase underground parking structure on Civic District as appropriate projects, partnerships and funds become
available. It helps define two additional building sites within the District for incremental implementation of the long
term vision.
Objectives
The development of a 412 space underground parking structure by 2012 will accommodate the increased
demand for parking from the Library, the Region and the Provincial Court Staff. With the garage design being
completed during 2009 and construction through 2010 and 2011, the timing of construction will be suitable for all
three intended users.
Scope
Upon Council approval to proceed with this project, a consultant will be engaged to prepare a design for the
parking structure in conjunction with the Kitchener Public Library Main Branch expansion. The design will also
consider a connection to the Regional Headquarters parking structure which has a knockout wall on the P2 level.
This element was incorporated into the Region's parking structure in anticipation of the eventual expansion of
underground parking in this area. It is projected that a full two years will be required to construct the garage with
an opening at the end of 2011.
While this would be a City parking structure, a stakeholder working group will be formed to ensure that all
contributing parties and ultimately end users had their needs met during the design, construction and operation of
this structure. A multidisciplinary team will be formed at various stages to develop, coordinate and oversee the
construction of this garage.
A small portion of Regional land that is directly behind Police Division #1 at 134 Frederick Street and Regional
Headquarters at 150 Frederick Street will need to be transferred to the City to allow the optimization of the
parking structure design. The surface area can be returned to parking for the Police once the construction is
competed.
While the construction of a 412 space below ground parking structure is estimated at $18,540,000, there will be
additional work required to complete the project.
While the vision for Mackenzie King Sq has been developed with area stakeholders, it hasn't yet been vetted by
the larger community. A public consultation process is necessary to ensure community support and
endorsement of the long term development of the area.
As part of the long term vision for the Civic District, provision is being made for the development of additional
buildings in the areas currently being occupied by surface parking. These areas would also have underground
6
parking developed at that time. In order to accommodate these areas, a small portion of the treed area will need
to be developed for surface parking now to help offset the loss of existing surface parking, but also provide for
this future building site. The park expansion or urban plaza above the underground garage will more than
compensate for the loss of this area.
The public square or urban plaza concept for the roof of the parking structure has not been included in the design
or cost estimates for the structure. This concept needs to be developed as part of the visioning exercise and
budgeted for accordingly.
Stakeholders
Stakeholders: Overview of Business Requirements
Primar -Internal
Council Continued support for the health, vitality and development of new
and existin businesses in the Civic District and Downtown
Development and Technical Adds to City parking inventory.
Services While garage is fully automated, will put pressure on staff to
accommodate additional servicin demands
Primar -External
Ministry of the Attorney General Partial contribution of development costs through cash in lieu
contribution for those s aces the can not develo on site
Region of Waterloo Full contribution of development costs to meet their required
arkin needs
Kitchener Public Library Partial contribution of development costs to meet the parking
demands of the Librar ex ansion
Parkin Customers Provides additional arkin in an area of hi h demand.
Centre in the Square Increases parking supply at nights and weekends for CIS
erformances
Secondary -
External
Ability to accommodate some other monthly parking for area
Public and area businesses businesses.
Some short term ublic arkin for businesses in the area.
Tax Payer Sufficient and well managed parking spaces with minimal financial
impact
7
The project aligns with the overall business plan of the corporation that parking functions should operate as an
enterprise and provide a return on investment as well as specific goals of the City of Kitchener Strategic Plan as well
as both the City's and Region's Growth Management Strategies.
Level
Goal of Explanation
Impact
We anticipate the needs of High By strategically locating parking structures to meet existing
internal & external and potential development, we support the health and
customers continued develo ment of the core.
We use knowledge of the Medium Through the operation of the majority of public parking in the
Corporation to maximize downtown, demands can be anticipated and proactively
service o ortunities addressed.
Public and private High By working with the Province, the Region and Kitchener
partnerships/sponsorships Public Library, we have secured a significant financial
contribution for this project as well as secured long term
tenants.
Build vibrant urban spaces High The intensification of use from a surface parking lot to a
three storey underground structure with public open space
or urban ark adds to the vibranc of this area of the core.
Greater transportation High Bicycle parking will be included in this structure to offer an
choice alternative to the automobile.
Develop economic health High By providing additional parking in the core, greater density of
and well being redevelopment can be supported. Higher modal splits (i.e.
more use of alternate transportation) to the downtown
means that less parking is required than if these uses
develo ed in reenfield sites.
Maintain a balanced High The replacement of surface parking and the expansion of
approach to replacing the number of spaces will not only support additional
and/or expanding existing development and intensification in the area but also start to
infrastructure and building implement the long term vision for Mackenzie King Sq.
new infrastructure
8
The Provincial Courthouse consolidation in Downtown Kitchener, the expansion of the Kitchener Public Library and the move
of additional Regional employees to the Waterloo County Courthouse has created a demand for parking that can not be met
with existing facilities. These potential partners have brought funding sources to the table to provide the majority of the initial
capital cost of construction. However, as part of the analysis for this project, a number of parking options were considered to
determine the optimum solution to meet the demands for these developments as well as the needs of other users in the area.
These options are briefly outlined below along with the associated impact.
Option 1
Do nothing. Advise the Province, the Region and the Library that the City is not interested in developing additional
parking in the Civic District.
Impact:
^ Lost potential funding source for the majority of the parking structure
^ Does not contribute to the vision for the Civic District of putting surface parking underground
^ Jeopardizes expansion opportunities for the Library and Region
^ May result in stand alone parking structures that are less efficient and not in keeping with the Civic District vision or City
design principles
^ Missed opportunity in terms of additional economy to downtown businesses i.e. restaurants
^ The city will continue to experience pressure on parking demand which will grow as lots come off-line for periods of time
for redevelopment
Option 2
Separate above ground structures are developed by each organization
Impact:
^ Administrative efficiency in controlling their own respective structures
^ Risk control for individual organizations
^ Violates design principles of Civic District
^ Poor operational efficiency
^ Poor utilization of available density in the District
^ Negative public perception
Option 3
City, Region and Province construct above ground parking structure on Lot 19
Impact:
^ Improved synergies in terms of project management
^ Improved land utilization
^ Improved opportunities to upgrade design
^ Improved operational efficiency
^ Violates design principles of Civic District
^ Poor utilization of available density in the District
^ Negative public reaction
^ Supports bringing new jobs to downtown Kitchener
^ Increase revenue from property taxes (PIL) for the City
^ Will assist in short term parking pressures as other parking lots are closed for short periods of time for development
^ City will have full control over the ownership, design, construction and operation of the parking garage
^ Will be a moderate impact on the tax levy
9
Option 4
City, Region and Province construct below ground structure on Lot 19
Impacts:
^ Improved synergies in terms of project management
^ Improved land utilization
^ Improved opportunities to upgrade design
^ Improved operational efficiency
^ Supports design principles of Civic District
^ Allows full utilization of available density in the District
^ Supports brings new jobs to downtown Kitchener
^ Increase revenue from property taxes (PIL) for the City
^ Will assist in short term parking pressures as other parking lots are closed for short periods of time for development
^ City will have full control over the ownership, design, construction and operation of the parking garage
^ Will be a moderate impact on the tax levy
Option 5
City, Region and Province build structure between Centre in the Square and 200 Frederick St
Impacts:
^ Improved land utilization and design solution for parking structure compared to option 2
^ Parcel size inadequate to accommodate demand
^ Location further away from intended users
Option 6
City, Region and Province build underground structure under Otto St.
Impacts:
^ No impairment of future land uses on Civic District
^ Improved synergies in terms of project management and operations
^ Increased distance from Library, Region and Courthouse
From the options in this report, Option 4 is the one that can be accomplished to meet the Library, Region and Province's
planned schedule for construction that is supportive of the design principles of the Civic District. It will permit staff to manage
the parking pressures on the downtown in the short term and it is financially feasible in light of the four way funding
partnership.
10
Risk of Project and each Viable Alternative (Not including Status Quo)
Project Risk Assessment
Probabilit Im act
Risk 1 -MAG, Region or Library delays
construction after the City commits to Low Medium
buildin a arkin structure
The City will negotiate progress payments
from the MAG, Region and Library that are
Risk 1 -General Mitigation Strategy in line with the parking structure schedule. At
a minimum, the respective partners will
finance any carrying charges.
Risk 2 -The MAG, Region or Library Low Low
does not need all 412 committed s aces
Parking demand from the new courthouse as
Risk 2 -General Mitigation Strategy well as other businesses in the area will fill
both the hourly and monthly parking demand
in this structure
Risk 3 - Gara e construction is dela ed Medium Hi h
Timing is reasonable if a commitment to start
design is made shortly and construction can
Risk 3 -General Mitigation Strategy begin in the spring of 2010. If delays are
incurred, a temporary shuttle maybe
re wired.
Risk 4 -Tender price comes in higher
Medium
Medium
than bud et
Risk 4 -General Mitigation Strategy Design features may need to be modified if
over budget
11
Risk of Not Proceeding with Project (Status Quo)
Project Risk Assessment Status Quo
Probabilit Im act
Risk 1 -Provincial courthouse develops
off site parking in a manner not in keeping
with the Civic District vision.
High
High
Risk 1 -General Miti ation Strate Some influence on structural desi n
Risk 2 -Library expansion doesn't
roceed High High
Risk2-General Mitigation Strategy Without sufficient parking, Library expansion
will not roceed as tanned.
Risk 3 - No additional parking developed
in the downtown High Medium
Risk 3 -General Mitigation Strategy Parking shortage will continue. Offices will
remain vacant without sufficient parkin .
12
Quantitative Analysis -Financial Cost & Benefit:
Financial Implications
The Civic District Parking Structure would consist of 412 spaces with a total estimated capital cost of
$18,540,000. City anticipates funding $16,345,000 of the capital cost out of direct capital contributions and cash-
in-lieu of parking revenues, leaving $2,194,992 to be financed by the City of Kitchener. On the next page is the
Civic Centre Parking Income Statement, showing the net operating impact for the construction year as well as the
four following years. The revenue and expenses are estimated to increase annually by 3.0%, except for the 20
year annual debenture payment of $182,323 which is based on a projected interest rate of 5.50% and does not
increase annually. The net levy impact is determined to be 0.02% in the first year of operation in 2012, which will
vary depending on final construction costs, actual inflation/rate increases and the debenture interest rate.
Staff recommends constructing the 412 space parking garage for $18,540,000, utilizing the $16,345,000 from the
cash-in-lieu of parking fund and borrowing the $2,194,992 difference over 20 years.
The City of Kitchener has an investment philosophy that ensures that any increases in debt charges from one
year to the next do not exceed assessment growth. As well, the overall contribution from the tax base through
taxes and debt charges will not increase more than assessment growth plus inflation from one year to the next.
This philosophy has ensured that the impact on the taxpayer does not exceed inflation and that the City must
prioritize projects to fit the funding available. The debt payments on this project would be above and beyond the
amounts provided for under the philosophy. However, the City of Kitchener's capital investment philosophy
provides for debt financing for projects which have a business plan showing revenues generated over a
reasonable "pay back period" covering the capital cost and interest of the project.
This proposal is consistent with the intent of the "exception" provisions outlined above. Although the pro forma
shows a small projected annual funding shortfall for the first three years, the net revenues show a surplus in year
four. Upon payment of all outstanding debt, the facility will generate projected annual net revenue of
approximately $300,000.
It should be noted that, although these debt service costs can be funded through increased parking revenues
associated with the new structure, the additional debt load will likely contribute to a debt level considered to be
"high" by the Province around the time that the debt load associated with EDIF reaches its peak (2013).
The following significant assumptions are reflected in the pro forma:
• Existing surface lot will be relocated on the site and the cost is included in the overall project budget
• Utilization level for the existing surface lot will not change
• No funding is included for the development of an urban square
• No major environmental or relocation of service issues will be encountered
• The Region of Waterloo will provide land at no cost to the City of Kitchener
• There will be full utilization of the monthly parking spaces allocated to the Province of Ontario and there will
be a utilization of 2 patrons per day in the hourly spaces
• Interest rates will not increase significantly over the next two years
• The construction cost of $45,000 per space, which includes engineering fees, project management, etc, has
been based on cost estimates from a current similar project with two levels of underground parking and a
library above.
• A second cost estimate by the engineering firm who designed the Charles & Benton parking structure,
suggests that the $45,000 per space is reasonable, but that engineering, project management and other
fees would be extra. In this scenario, expenses would be:
13
Construction @ $45,000 per space $18,540,000
Engineering/Architectural fees @ 6% $1,112,000
Surrounding infrastructure improvements, sidewalks, laneway, lighting $200,000
Parking equipment $190,000
Public art C~ 1 % $185,000
Project management @ 1 % $185,000
Total
Equates to $49,543 per space
$20,412,000
This cost could be considered an extreme upper limit since a portion of the garage roof would be attributed to
the Library and a portion of the engineering/architectural fees and surrounding improvements would also be
attributed to the Library. The current economic climate should also temper tender prices.
• The estimated costs have been based on the exact number of spaces required. The actual design of the
structure may have slightly more or less spaces due to ramping, footprint area, etc which may impact the
final cost slightly.
Net Revenue For Newly Constructed Civic Centre Parking
Hourly Parking (112 Spaces X $3.25/For 4 Hrs X 2 Times/Day X 5 DaysNVk X 50
W ks/Yr plus a 3 % annual i ncrease)
Cast Sharing -Region (100 Spaces X $77/Month X 12 Months/Year pl us a 3
annual increase)
Monthly Parking (200 Spaces X $111/Month X 12 Months/Year plus a 3 % annual
increase)
Annual Loan Payment
Taxes (Based on 2007 Actual From Duke & Ontario Lot Index 942508 plus a 3
annual increase)
Operational Cast (Based on 2007 Actual From Duke & Ontario Lot Index 942508
plus a3% annual increase)
Capital Provision
Net Revenue After Civic Centre Net Revenue Foregone
Monthly Parking Revenue ($98.24/Space/Month plus a 3% annual increase)
Operating Cost Per Space Per Month
Capital Cost Per Space Per Month at a 3 % increase per year
Total Cast Per Space Per Month
2012 2013 2014 2015 2016
$ 189.085 $ 194.758 $ 200.601 $ 206.619 $ 212.817
91,849 94.605 97.443 100.366 103,377
265.368 273.329 281.529 289.975 298.674
(182.323) (182.323) (182.323) (182.323) (182.323)
(100.157) (103.161) (106256) (109.444) (112.727)
(176.416) (181708) (182159) (192774) (198,557)
(101.846) (104,902) (108,049) (111,290) (114.629)
$ (14.439) $ (9.402) $ (4.215) $ 1.129 $ 6,632
$ 111 $ 114 $ 117 $ 121 $ 124
$ 56 $ 58 $ 59 $ 61 $ 63
21 21 22 23 23
$ 77 $ 79 $ 81 $ 84 $ 86
Net Levy Impact (Index 095109 Subobject 0011 2008 Budget plus 3 % annual
increase)
Notes
Assumes $120.000 far surface lot relocation included in $45,000 per space cast
Includes no funding far Urban Square development
10 year debt would result In a lass of $134K In 2011
Assumes no major environmental or service relocation issues
Assumes Region provides land at no cast
0.02
14
Qualitative Analysis -Non-Financial Benefits & Costs:
Qualitative Description Stakeholders) Impacted
Summary
Benefits:
Consolidation of courthouses and
Additional employees and expansion of Regional offices in
customers brought to the Kitchener will add net employees. Supports ancillary uses
downtown Expanded Library will bring more hourly
customers to the core.
Greater density of uses in By placing parking underground, the Supports the surrounding
the Civic District opportunity allows for the creation of an developments as well as
ex anded ublic ark or urban laza. the lar er nei hbourhood.
15
Conclusions
In order to ensure an efficient and reasonable development of parking to meet the demands of the
Province, Region and Library, as well as support the vision for the Civic District, the development of an
underground parking structure is the best solution to meet all needs.
Cash contributions of $7,000,000 by the Province, $4,500,000 by the Region and $4,845,000 by the
Library will provide a significant and sufficient financial contribution to allow the net revenues from other
users of this facility to pay the operating and the majority of the development costs.
The inclusion of an expanded park or urban plaza will contribute to increased activity, surveillance and use
of the site. This will be supportive of not only the adjacent developments but also the greater
neighbourhood.
As a result, it is recommended that a 412 space under ground parking structure be developed in the Civic
District in conjunction with the expansion of the Library.
In order to meet the timelines for development of the Courthouse, the Library and the Region, design must
start immediately with construction commencing in the spring of 2010 with completion by December 2011.
16