city of hamilton … · hearings sub-committee in july of 2003 and requested that the city conduct...

AFFECTS WARD 11

CITY OF HAMILTON

PUBLIC WORKS DEPARTMENT

Capital Planning & Implementation Division

Report to: Chair and Members Public Works, Infrastructure & Environment Committee

Submitted by: Scott Stewart, C.E.T. General Manager

Date: May 16, 2005 Prepared by: Mark A. Kosiuk

Extension 2331

SUBJECT: Glanbrook Sports Complex Master Plan

(PW05071) - (Ward 11 with City Wide Implications) (Item “C” Master Plan for the Glanbrook Sports Complex

in the Public Works Infrastructure and Environment Committee Outstanding Business List)

RECOMMENDATION: (a) That the Glanbrook Sports Complex Master Plan redevelopment proposal be

approved as per Appendix C. (b) That the total costs in the estimated amount of $6.2 million (2006 – 2010), as per

Table 2.0 and Appendix D for the Redevelopment of the Glanbrook Sports Complex be submitted through the City’s 2006 – 2015 Capital Budget Plan for Council’s consideration.

(c) That Staff of the Planning and Economic Development Department be directed to designate and zone the undeveloped lands north of the Glanbrook Municipal Cemetery and Glanbrook Sports Complex as Open Space as part of the new Official Plan and Zoning By-law.

(d) That Staff of the Planning and Economic Development Department be directed to zone the undeveloped lands of the Municipal Cemetery to an appropriate Park/Open Space zone in the new Zoning By-law.

(e) That Staff be directed to remove Item “C” Master Plan for the Glanbrook Sports Complex from the Public Works Infrastructure and Environment Committee Outstanding Business List.

____________________________ Scott Stewart, C.E.T. General Manager Public Works

SUBJECT: Glanbrook Sports Complex Master Plan (PW05071) - (Ward 11 with City Wide Implications) - of 11

EXECUTIVE SUMMARY: The purpose of this report is to formally present and request the approval of the Glanbrook Sports Complex Master Plan. Mr. Don Clowes, representing the Glanbrook Youth Soccer Club, addressed the Hearings Sub-Committee in July of 2003 and requested that the City conduct a review for the overall design of the existing sportsfields area, including the 6.41 hectares (15.83 acres) of City owned lands which are presently undeveloped. City Council on July 9, 2003 approved a motion to direct staff to prepare a Master Plan for the Glanbrook Sports Complex incorporating the undeveloped City lands and or lands adjacent to the Complex. Funding for this project was also approved by City Council and was to be obtained from the Glanbrook Parkland Development Charge Reserve # 116032 to an upset limit of $30,000. The City of Hamilton has undertaken, at a master plan level, the review of the existing Glanbrook Sports Complex site, and the adjacent existing undeveloped City owned lands. This master plan has addressed current and future needs for additional sports fields, cultural and recreational facilities and determined that the purchase of adjacent lands is not required to accommodate these facilities.

BACKGROUND: The information/recommendations in this report primarily affect Ward 11 with City wide implications. At their Council meeting of July 9, 2003 Council gave direction, “That staff and/or consultants develop a Master Plan for the Glanbrook Soccer/Baseball/Hockey Complex on Binbrook Road incorporating the undeveloped City land and/or any other required lands adjacent to the Park”, and “That the funding source for this project be from the Glanbrook Parkland Development Charge Reserve # 116032 to an upset limit of $30,000.” Originally staff from Public Health and Community Services’ Culture and Recreation division were the lead on this project. At their Council meeting of March 10, 2004 Council gave direction, “That the Master Plan for the Glanbrook Sports Facility, Binbrook Road which was transferred from the Community Services Committee Outstanding Business List be added as new Item “O” to the Public Works Infrastructure and Environment Committee Outstanding Business List.” Existing Features and Facilities The Glanbrook Sports Complex is located at 4300 Binbrook Road West between Trinity Church Road and Fletcher Road in the former Township of Glanbrook (See Appendix A Site Location Map and Appendix B Existing Conditions). City owned lands are comprised of three distinct parcels totalling 24.05 hectares (59.43 acres) in area. These parcels include the existing Glanbrook Sports Complex, the Glanbrook Municipal Cemetery, and the undeveloped City-owned lands to the north of the Glanbrook Municipal Cemetery and the Glanbrook Sports Complex.


The developed portion includes the Glanbrook Sports Complex, which is the largest of the three parcels at 12.51 hectares (30.91 acres) in size. When coupled with the Glanbrook Municipal Cemetery the frontage along Binbrook Road West totals 365.0 meters (1198.0 feet). The Glanbrook Sports Complex The Glanbrook Sports Complex contains the following facilities:

• The Municipal Service Centre (former Township of Glanbrook municipal offices) • The Glanbrook Arena/Community Centre • Cenotaph • Accessory Buildings (3) • Baseball Field (1 Lit) • Softball Field (1 Unlit and not being utilized due to a spatial conflict with a three

quarter size soccer field) • Soccer Fields (1 Lit full size field)

(3 three quarter size fields, one of which is not being utilized due to a spatial conflict with a softball diamond)

(2 mid size fields) (1 mini size field)

• Creative Play Structure Area • Parking Lot for approx. 400 vehicles

The Glanbrook Municipal Cemetery The Glanbrook Municipal Cemetery has an area of 5.13 hectares (12.67 acres) the first phase of which consists of 2.21 hectares (5.46 acres) of developed lands and 2.92 hectares (7.21 acres) of undeveloped lands for future development. Undeveloped City Owned Lands The undeveloped City owned lands to the north of the cemetery and the Glanbrook Sports Complex is 6.41 hectares (15.83 acres) with 172.0 meters (564.0 feet) of frontage on Trinity Church Road. The former Township of Glanbrook Council in 1991 deemed it appropriate to acquire these lands for recreational purposes (By-Law No. 447-91). These lands are designated as “Agricultural” in the Glanbrook Official Plan with a “Greenbelt” provincial designation and the zoning is “General Agricultural Zone”. The City is not leasing these lands for agricultural purposes. The City of Hamilton, therefore, owns 21.84 hectares (53.97acres) of land available for recreational development. It should be noted these lands currently are not serviced by water, storm or sanitary services. Developmental Parameters A consulting firm, A.E. Bowler Associates, had been retained at a cost of $26,400 plus GST to prepare the master plan (Council had approved funding of $30,000 for consulting fees). The Consultant has been involved in discussions with City Staff, sports user groups and the general public to formulate and plan an overall Design Development Program as part of the Master Plan for the Glanbrook Sports Complex.


The City’s Strategic and Community Planning section have indicated the current population of the Binbrook area will rise from 1,200 persons to 15,000 persons. The proposed Rymal Road Planning Area (between Trinity Church Rd. and Hwy. 56, north of the Hydro Corridor) will see a forecast population of 6,965 persons. The total population growth for these two areas will be approximately 22,000 persons over the next ten years. The City’s Culture and Recreation division through discussions with the primary user groups Hamilton and District Baseball Association Stoney Creek 1812 Baseball Club (HDBA), and the Glanbrook Youth Soccer Club (GYSC), have provided the following statistics: The HDBA is anticipating a ten percent (10%) growth per year based upon the participation of 200 players in 2003. The GYSB is anticipating a ten percent (10%) growth per year based upon the participation of 710 players in 2004. Culture and Recreation and the primary user groups have identified the following facility needs based on projected population and participant levels:

HDBA: 1 lit hardball diamond with accessory amenities (dugouts, change rooms, concession stand, and score-keeper’s booth) GYSB: 2 lit full size fields 2 full size field 2 three quarter size fields 3 mid size field 3 mini size fields Accessory Amenities (Pavilions for shelter, office and washroom facilities)

To accommodate these additional facilities the undeveloped City owned lands to the north of the cemetery and the Glanbrook Sports Complex of 6.41 hectares (15.83 acres) will have to be developed. To allow recreational use on these City owned lands will require staff to designate and zone the undeveloped lands as open space as part of the new Official Plan and Zoning By-law. Cemeteries staff have indicated the first phase of the existing Glanbrook Municipal Cemetery, which consists of 2.21 hectares (5.46 acres), will not achieve full internment until between twenty to twenty-five years. This means 2.92 hectares (7.21 acres) of the undeveloped portion of the Glanbrook Municipal Cemetery would be available, on a temporary basis, for the development of recreational sports fields. Cemeteries staff cite other municipalities, such as the cities of St. Catharines and Waterloo that have allowed recreational uses, on a temporary basis, on undeveloped portions of cemetery lands. Cemeteries staff also note that the Cemeteries Act does not discount this proposed recreational use. To allow recreational use on the undeveloped lands of the Glanbrook Municipal Cemetery will require staff to zone the undeveloped lands of the Municipal Cemetery to an appropriate Park/Open Space zone in the new Zoning By-law.


Culture and Recreation staff in consultation with the Hamilton and District Baseball Association Stoney Creek 1812 Baseball Club (HDBA) and the Glanbrook Youth Soccer Club (GYSC), and based on projected population and participant levels within the next 10 years it was determined that the purchase of adjacent lands is not required to accommodate additional sports field facilities. HDBA and GYSC have in the past expressed concern over the safety of soccer players and spectators. The conflict between these two user groups results from an inadequate buffer distance of only 15m (50ft.) between the baseball diamond and the two adjacent soccer fields. Errant balls from the baseball diamond pose a hazard to players and spectators both at the sideline and on the soccer fields. Netting has been provided along the first and third baselines to reduce errant balls. To date the netting has been successful in catching many of the foul balls although there are still a few errant balls leaving the ball diamond and posing a potential liability risk. There are added maintenance costs in putting up and taking down the netting. The life expectancy of this type of netting, if taken down after each season, is between seven (7) years to ten (10) years. If the netting is left up the life expectancy is reduced to five (5) years. Ideally there should be a minimum of 30m (100ft.) separation distance between these two facilities. Given the current layout of the baseball diamond and the two adjacent soccer fields the ideal buffer distance is unachievable. If the buffer were implemented it would impact the playing use of the existing soccer fields. This would result in the elimination of two (2) soccer fields leading to a reduction in on site soccer programming. Existing vehicular circulation and parking continues to pose safety and liability issues during the peak months when baseball and soccer groups are using their facilities concurrently. The parking lot has a current capacity of approximately 400 vehicles and is poorly laid out. The overflow of vehicles tend to double park in aisle ways, in areas designated fire and emergency routes, and in service driveways. On any given soccer night it is not uncommon to see vehicles parked on the shoulders of Binbrook Road West. Both the HDBA and GYSC have stated they would like to see improvements to pedestrian and vehicular circulation as well as increased vehicular parking. Staff agree that improvements are warranted based on existing conditions. Design Program Several concept plans were prepared and reviewed by representatives of the City of Hamilton Departments including Public Health and Community Services (Culture and Recreation), Planning and Economic Development (Development and Real Estate), Public Works (Operations and Maintenance, and Capital Planning and Implementation). Stakeholder groups included Hamilton and District Baseball Association Stoney Creek 1812 Baseball Club (HDBA), and the Glanbrook Youth Soccer Club (GYSC). The Ward 11 Councillor also participated in this review. The final preferred option consists of the following facility components that are to be incorporated into the Glanbrook Sports Complex Master Plan: Baseball: 1 lit field with accessory facilities Soccer: 12 fields (2 full lit, 2 full, 2 three-quarter, 3 mid, 3 mini) with accessory facilities Parking: provision for 652 cars Creative Play Areas: to function as focal nodes


Walkway System: pathway connections to facilities Open Space: passive areas and separation between facilities and adjacent properties

Table 1.0 Glanbrook Sports Complex Master Plan Facilities Comparison

Facilities Existing Proposed

Baseball Diamond

• Lit 1 1

Totals 1 1

Softball Diamond 1 (to be removed) 0

Totals 1 0

Soccer Fields

• Full (Lit) 1 2

• Full (Unlit) 0 2

• Three quarter 2 2

• Mid 2 3

• Mini 1 3

Totals 6 12

Arena 1 (to remain) 0

Creative Play Area 1 2

Parking Spaces 400 652

Public Participation Public participation involved a public open house held by the City on April 20th, 2005 to present the concept plan to the general public and various stakeholders Hamilton and District Baseball Association Stoney Creek 1812 Baseball Club (HDBA) and the Glanbrook Youth Soccer Club (GYSC). Seventeen (17) persons attended and were provided with a comment sheet, on which they were asked to express their satisfaction with the concept proposal, as well as to express any concerns or comments regarding the concept. To date only five (5) comments sheets have been received. Three (3) residents were satisfied with the concept proposal. Two (2) residents were opposed to using the Cemetery lands for recreational uses and one (1) resident added the comment that there is a need to twin the hockey arena. Staff note that although there were minimal comment sheets returned by the public, substantial input was received by the Hamilton and District Baseball Association Stoney Creek 1812 Baseball Club (HDBA) and the Glanbrook Youth Soccer Club (GYSC) sports groups. Both the HDBA and GYSC had reviewed the Master Plan prior to the public open house and are in favour of the Glanbrook Sports Complex redevelopment proposal calling it “a safer and viable plan for all ages”.


ANALYSIS OF ALTERNATIVES: The first alternative would be the “do nothing approach”. If Council chooses not to approve the Glanbrook Sports Complex Master Plan then: i) given the projected population growth in the Glanbrook/Binbrook area the demand for organized sports (in particular soccer a high growth international sport) will continue to increase not only in this area but in other City areas as well. This will result in the community being turned away from existing sports programs and seeking alternative locations within the City which currently cannot meet this demand. ii) the existing sportsfield layout conditions will remain and there will be a continued conflict between the HDBA and the GYSC (i.e. the baseball field and soccer fields). iii) the existing parking lot layout does not function well and as a result circulation problems and insufficient parking will remain and there will be continued safety and liability issues. The second alternative would be to address the issues of sportsfield conflict between the HDBA and the GYSC and the issues of pedestrian / vehicular circulation and parking. If Council chooses to undertake the remedial works for the sportsfield conflict and for the vehicular circulation and parking conflict then the following options are: In the case of the sportsfields: i) this would potentially result in the elimination of the hardball diamond or two soccer fields, leading to a reduction in on site sports participant programming. ii) there is the potential to convert an existing softball diamond to a soccer field but at a cost of $125,000. In the case of the vehicular circulation and parking: i) there is the potential to improve pedestrian and vehicular circulation as well as increase vehicular parking but at a cost of $1,675,000 (see Table 2.0) and would result in the elimination of one (1) full sized lit soccer field. With all options a potentially significant improvement in personal safety and reduction in liability claims will be made. The third and recommended alternative would be for Council to approve the Glanbrook Sports Complex Master Plan redevelopment proposal which would address: i) the issues of population growth and the demand for organized sport (in particular soccer a high growth international sport). Currently the Glanbrook Sports Complex contains six (6) soccer fields and the Master Plan has increased the number of soccer fields to twelve (12). These additional soccer fields would be developed on the existing undeveloped City owned lands to the north of the cemetery and the Glanbrook Sports Complex, and the existing undeveloped lands of the Glanbrook Municipal Cemetery. The purchase of adjacent lands is not required to accommodate these facilities. ii) safety and liability issues which would eliminate the existing sportsfield conflict between the Hamilton and District Baseball Association Stoney Creek 1812 Baseball Club (HDBA) and the Glanbrook Youth Soccer Club (GYSC) sports groups.


iii) safety and liability issues associated with the existing pedestrian / vehicular circulation and parking lot layout. Redevelopment of the parking lot area could create a potentially significant improvement in personal safety and reduction in liability claims. FINANCIAL/STAFFING/LEGAL IMPLICATIONS: Financial The preliminary total cost estimate for this project is estimated to be $6,200,000. Approximately 80% of this project would be eligible for funding from Development Charges. Although the City maximized the amount of growth capital eligible for park development in terms of calculating the City's development charges based on past service levels, this particular project was not identified in the City's Development Charge Background Study. This project will be included when the City re-opens its development charge by-law based on completed GRID's study work (anticipated late 2005, early 2006). In addition to anticipated development charge collections, there exists other potential sources of funding such as:

1. Former Glanbrook Capital Reserve, $340,000. 2. Former Glanbrook Soft Service DC's, $2,000,000.

As there is no parkland acquisition required here, there may be only a limited amount available from the former Glanbrook Parkland Acquisition Reserve, current balance of $1,300,000. This reserve may also be required for other future Glanbrook parks works identified below. Finance staff will determine a funding plan for this whole project based upon availability of development charge and other funds during the 2006 budget process. It should be noted that there will also be financial pressure for developing parks in the Glanbrook area including: one (1) Community Park, five (5) Neighbourhood Parks, and eight (8) passive Open Space areas. Staff will research the timing of these parks with Planning and Economic Development (Long Range Planning, and Community Planning and Design), Corporate Services (Budget and Finance), Public Health and Community Services (Culture and Recreation), and Public Works (Operations and Maintenance, and Capital Planning & Implementation). The overall timing of these newer developed parks may affect the funding requests for the Glanbrook Sports Complex (see Preliminary Phasing and Programming Schedule: 2006 to 2010) and may require the phasing years to be increased over a longer period of time.


Table 2.0

Preliminary Phasing and Programming Schedule: 2006 to 2010 (See Appendix D)

Year Phase Program Cost

Estimate (Preliminary)

2006 Design Detailed Design for all Phases $495,000 2007 Phase 1 Sportsfield development on the undeveloped City

lands to the north of the cemetery, on a portion of the undeveloped cemetery lands and on a portion of the Glanbrook Sports Complex lands.

$1,760,000

2008 Phase 2 Development of the Glanbrook Sports Complex lands (including a lit baseball diamond, a lit soccer field and parking).

$1,390,000

2009 Phase 3 Redevelopment of the parking lot on the Glanbrook Sports Complex lands.

$1,675,000

2010 Phase 4 Sportsfield development on a portion of the undeveloped cemetery lands, and on the existing Glanbrook Sports Complex lands. Conversion of the existing baseball diamond to a lit soccer field.

$880,000

TOTAL $6,200,000

Note: This Schedule is subject to Annual Capital Budget Submissions, Council approvals, reserve accounts, and local development. The Parks Maintenance Section of Operations and Maintenance Division have indicated the estimated annual maintenance budget for the sportsfield component of the Glanbrook Sports Complex will be $53,000 for operating impacts in the areas of Materials and Supplies, Contractual Services, Litter Control, General Park Maintenance etc. Capital costs for various equipment required to perform maintenance activities would be $88,050 and additional annualized operating costs for this equipment will be $21,300 plus fuel costs estimated to be at $12,000. Increases to maintenance costs will be included in Capital Budget Submissions regarding the construction and phasing of the Glanbrook Sports Complex. Staffing Currently there is an Operations and Maintenance Division’s Student staff complement of 2 x 0.33 F.T.E. to perform regular maintenance activities for the entire Glanbrook District. In order to perform regular maintenance activities at the proposed redeveloped Glanbrook Sports Complex (which will be operational on a two shift seven days a week basis), an adjustment to the Operations and Maintenance Division’s Student staff complement of 1 additional F.T.E plus 5 summer students would be required at an annualized cost of $142,800. Legal N/A


POLICIES AFFECTING PROPOSAL: All the lands are subject to the Greenbelt Protection Act which came into effect on February 28, 2005. The legislation allows lands to be designated for open space purposes.

Table 3.0 Other Planning Policies

Location of Lands Official Plan designation (Regional

Official Plan)

Official Plan designation (Glanbrook)

Existing Zoning

Glanbrook Municipal Cemetery Lands

Rural Open Space and Conservation (B.1.9.14)

I – 106 “Institutional Zone”

Undeveloped lands to the north of the Cemetery and Glanbrook Municipal Sports Complex

Rural Agriculture A1 – “General Agricultural Zone”

The Planning and Economic Development Department staff are preparing a new Official Plan and Zoning By-law for the City. Staff is currently working on Official Plan policies and Zoning By-law regulations for the Rural area. Since these lands are not intended to be developed until 2007, staff should be directed to include these lands for the proposed sports park and existing cemetery in the new designations and zoning by-law regulations.

CONSULTATION WITH RELEVANT DEPARTMENTS/AGENCIES: The consultant had prepared several concepts which were reviewed by various departments including Public Health and Community Services (Culture and Recreation), Planning and Economic Development (Development and Real Estate, and Long Range Planning), and Public Works (Operations and Maintenance, Capital Planning and Implementation). Formalized discussions among staff raised several issues and concerns and required further investigation by staff. Culture and Recreation staff are in support of the Master Plan. Culture and Recreation also met with various stakeholders in particular the Hamilton and District Baseball Association Stoney Creek 1812 Baseball Club (HDBA) and the Glanbrook Youth Soccer Club (GYSC) who provided statistical information, facilities needs, and current site-related issues. Both the HDBA and GYSC had reviewed the Master Plan prior to the public open house and are in favour of the Glanbrook Sports Complex redevelopment proposal calling it “a safer and viable plan for all ages”. Planning and Economic Development are supportive of the Master Plan. However both Development and Real Estate, and Long Range Planning have indicated the expansion of the Glanbrook Sports Complex on the City-owned undeveloped lands would need to


be incorporated into the new designations and zoning by-law regulations. (See Policies Affecting Proposal). Cemeteries staff of the Operations and Maintenance division had no objections to allowing temporary sportsfields on the undeveloped portion of the Glanbrook Municipal Cemetery lands but expressed concern with the potential disruption of burial services on the developed cemetery lands by the sports groups. It was determined that a sufficient buffer of at least 30m (100ft.) would be provided between the north end of the developed cemetery lands and any proposed soccer fields within the proposed cemetery expansion lands). Currently a 1.8m (6 ft) high chainlink fence and berm separate the developed and undeveloped sections of the cemetery. The Forestry section of the Operations and Maintenance division had proposed to develop the City-owned undeveloped lands as a tree nursery for the Red Hill Creek Expressway and the City’s future needs. It was determined the acreage available at this location is insufficient to accommodate the required tree inventory and the nursery is no longer being considered on these lands. Operations and Maintenance staff have asked that once infrastructure servicing becomes available in the Trinity Church Road and Binbrook Road West area that the proposed field classifications Class C (unlit) be upgraded to accommodate Class A (lit) or B fields (unlit) which would include sportsfield irrigation. The existing Glanbrook Sports Complex, the Glanbrook Municipal Cemetery, the undeveloped City-owned lands to the north of the Glanbrook Municipal Cemetery and the Glanbrook Sports Complex currently are not serviced by water, storm or sanitary services. Timing of the placement of these services is unknown and is development driven dependent. However these services could be put in place if Council were to direct staff to expand them from an existing serviced area based on the provision of necessary capital funding from Council to do so. The Ward 11 Councillor also provided comment on several occasions and attended the Public Open House held by the City on April 20, 2005 to present the Glanbrook Sports Complex Master Plan and to meet with the general public and various stakeholders. CITY STRATEGIC COMMITMENT: Consistent with Vision 2020 with respect to:

• the development/redevelopment of open space that will have recreational, social and health benefits to the entire community,

• the development/redevelopment of cultural institutions, public facilities and parks and open space which inspire community pride and sense of place,

• the improvement of one’s personal health status, • the promotion of the City of Hamilton's environment as a desirable place to live

and work, • to develop our economic, social and physical environments so as to enable the

participation of all citizens and communities in local and regional community life, • enabling participation by all citizens and communities in government decisions.

N

Glanbrook Sports Complex

Site Location MapNTS

Appendix A

June 2005Public Works

Capital Planning and Implementation,Open Space Development and Park Planning

.General Manager

C.E.TScott Stewart,

Binbrook

GlanbrookSports Complex

Glanbrook MunicipalService Center

N


Existing ConditionsNTS

Appendix B

June 2005Public Works

Capital Planning and Implementation,Open Space Development and Park Planning

.General Manager

C.E.TScott Stewart,

Glanbrook MunicipalCemetery Phase 1( 5.46 ac.)2.21 ha./

Glanbrook MunicipalCemetery Phase 2Future Development(2.92 ac.)ha./ 7.21

Undeveloped City Lands( ac.)6.41 ha./ 15.83

Glanbrook ArenaAnd Auditorium Cenotaph

Parking

Property Line

Glanbrook Sport Complex(12.51 30.91 ac.)ha./

Note: Total City of Hamilton Lands AvailableFor Recreational Development 21.84 ha./53.97 ac.

Capital Planning and Implementation, Open Space Development and Park Planning

Public Works Appendix C

June 2005 General Manager Scott Stewart, C.E.T.


Master Plan (Fully Developed) N.T.S.

1

3

2

Capital Planning and Implementation, Open Space Development and Park Planning

Public Works Appendix D

June 2005 General Manager Scott Stewart, C.E.T.


Potential Phasing Plan N.T.S.

4

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