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Pg 1 of Report PR-37-09

COMMUNITY SERVICES DIVISION

Parks and Recreation Department

TO: Chair and Members of the Community and Corporate Services Committee

SUBJECT: ALTON COMMUNITY CENTRE – PREFERRED OPTION

Report Number: PR-37-09 Report Date: June 10, 2009

Author(s): Jim Seferiades Date to Committee: June 24, 2009

Telephone: 905 335-7600 Ext. 7785 Date to Council: July 6, 2009

Ward(s) Affected: 1 2 3 4 5 6 All File Number(s): 900-01

APPROVALS:

___________________

Department Head

___________________

General Manager

__________________

City Manager

To be completed by the Clerks Department

Committee

Disposition &

Comments

01– Approved 02 – Not Approved 03 – As Amended 04 – Referred 05 – Deferred 06 – Received & Filed 07 – Withdrawn

Council

Disposition &

Comments

01– Approved 02 – Not Approved 03 – As Amended 04 – Referred 05 – Deferred 06 – Received & Filed 07 – Withdrawn

1.0 RECOMMENDATION:

THAT Option 1a recommending an integrated high school, public library and community centre

complex on the Halton District School Board property at the northwest corner of Dundas Street

and Tim Dobbie Drive be approved, as outlined in Report PR-37-09 dated June 10, 2009; and

THAT the Memorandum of Understanding attached as Appendix F to Report PR-37-09 be

approved as a framework document outlining various principles and capturing the various

interests, requirements and responsibilities of the parties being the City, Halton District School

Board and the Burlington Public Library in respect of this initiative; and


THAT funding identified in the 2010 capital forecast for the Alton Community Centre and

Northeast Library be pre-approved as amended and outlined in Report PR-37-09; and

THAT the strategy addressing the funding gap for the project as outlined in Report PR-37-09 be

approved; and

THAT staff be authorized to continue to work with the Halton District School Board and the

Burlington Public Library on the detailed design of the facility; and

THAT the Director of Parks and Recreation be directed to work with School and Library

officials to develop an agreement, and report back in September/October 2009; and

THAT the Director of Parks and Recreation be authorized to immediately issue an RFP for the

detailed design of Norton Park with scheduled construction in 2010; and

THAT the Manager of Realty Services be directed to report back with strategies on the

disposition of the 3 hectare City-owned property on the southeast corner of Walkers Line and

Highway 407, so as to optimize the return on this asset; and

THAT the Director of Parks and Recreation report back on the results and recommendations of

the Request for Proposal for capital joint venture partners in connection with the Alton

Community Centre by September 2009; and

THAT the Director of Parks and Recreation notify the Halton District School Board and the

Burlington Public Library of the City’s decision to move forward with this partnered initiative.

EXECUTIVE SUMMARY: N/A

2.0 PURPOSE:

The purpose of this report is to:

Provide an analysis of the various options for the development of the future planned

Alton Community Centre and recommend a preferred direction for the project

Seek approval of a Memorandum of Understanding providing a framework for the

preferred option identifying partners, principles, interests, responsibilities and

implementation requirements

Provide an analysis of cost and funding implications for the preferred option

Provide a high level timeline for the implementation of the preferred option

3.0 BACKGROUND AND RELATIONSHIP TO STRATEGIC PLAN:

The Alton Community Centre and Northeast Library are key initiatives planned to respond to

growth in north Burlington and an increased demand for recreation and library services. Both

initiatives have funding identified over the next three years in the City’s approved 10-Year

Capital Budget and Forecast.


As is typical for initiatives of this magnitude, a feasibility study was launched in October 2008 to

address key strategic considerations such as site selection, programmatic scope, functional

requirements, building and site components, partnership opportunities, estimated costs, funding

sources and any potential community impacts. Running in parallel with the feasibility study is

the City’s Parks, Recreation and Cultural Assets Master Plan which has provided important

strategic inputs related to community need, trends, and broader service delivery dimensions to

help shape the direction and vision for this initiative.

This report presents the findings and recommendations of the feasibility study. The following

summarizes various pertinent strategic directions and Council resolutions related to the initiative.

Pertinent Future Focus VII – Strategic Plan Directions 2007-2010

Table 1 - Future Focus VII Strategic Directions

Focus Area: Responsive Community

Goals: Burlington is an inclusive and caring community.

City and community services, programs, parks and facilities contribute directly

to the exceptional quality of life enjoyed by Burlington citizens.

Strategic

Actions:

Ensure city services, programs and facilities are available to all members of the

community.

Actively support and build capacity within the volunteer sector of the

community.

Support and encourage health, wellness and active living by all residents.

Support and celebrate the arts, culture and heritage assets and resources of the

community, including international relationships.

Initiatives: Explore joint partnership opportunities for the development of recreation

venues including centres of excellence for sport.

Build community capacity and support the ongoing development of the arts

and cultural sector utilizing the Cultural Strategy and Public Art Plan to set

priorities.

Continue to support the Burlington Public Library and its emphasis on

enhancing literacy, learning and community connections.

Continue to support the Burlington Art Centre with an emphasis on the

development of cultural tourism and programming

Pertinent Council Resolutions and Staff Directions

PR-14-09

(March 9, 2009)

Receipt of Phase 1 Situational Analysis Executive Summary Report for the

Parks, Recreation and Cultural Assets Master Plan and approval of next steps

and revised timeline.

THAT the City of Burlington Parks, Recreation and Cultural Assets Master

Plan - Phase 1 Situational Analysis Executive Summary Report dated

February 2009, prepared by F.J. Galloway Associates Inc. and attached as

Appendix A to Parks & Recreation Report PR-14-09, dated February 12,

2009, be received; and


THAT the options recommended for further development and investigation

related to the Alton Community Centre, Northeast Library, Sherwood Forest

Park and Mountainside Park Feasibility Studies as outlined in Parks and

Recreation Department Report PR-14-09, dated February 12, 2009, be

endorsed subject to the approval of recommendations contained in companion

Parks and Recreation Department Report PR-12-09, dated February 12, 2009;

and

THAT the revised project timeline outlined in this report be approved,

recognizing the scope and complexity of the integrated planning initiatives.

PR-12-09

(March 9, 2009)

Approval to consider alternate sites for the Alton Community Centre

THAT the Director of Parks & Recreation be authorized to consider

alternative locations for the siting of the Alton Community Centre as part of

the site-specific feasibility study for the Alton Community Centre, being

undertaken as a component of the Parks, Recreation and Cultural Assets

Master Plan, as referenced in Parks & Recreation Department Report PR-14-

09, dated February 12, 2009; and

THAT the sites to be included are the proposed high school site in the Alton

Community and Norton Community Park; and

THAT the timelines for developing the site-specific options be as outlined in

Parks & Recreation Department Report PR-14-09, dated February 12, 2009;

and

THAT the Director of Parks & Recreation be authorized to advise the Halton

District School Board immediately following the March 4, 2009 Community

& Corporate Services Committee meeting, that the City is receptive to

exploring partnership opportunities on their school site location. (PR-12-09-

01)

Special

C&CS

(May 25, 2009)

Direction to amend options for the Alton Community Centre Feasibility

Project

THAT the Acting Director of Parks & Recreation be directed to add an

Option 1a to the Alton Community Centre Feasibility Project, which will

include all of Option 1 plus a quad double gym and its components; and

THAT Option 3 be deleted and Options 1, 1a and 2 of the Alton Community

Centre Feasibility Project be presented to the Alton Community Centre and

Library Public Open House on June 2, 2009 at Brant Hills Community

Centre.(Councillor Taylor)


4.0 DISCUSSION:

4.1 Alternative Sites

At it’s meeting of March 9, 2009, Council directed staff to investigate three alternative locations

for the future Alton Community Centre including:

City-owned property (3 hectares) at the southeast corner of Walkers Line and Highway 407

Alton high school site (6.3 hectares) on Dundas Street, west of Tim Dobbie Drive

Norton community park site (6.9 hectares) on Dundas Street, east of Tim Dobbie Drive

Subsequently, at a Special Community and Corporate Services Committee workshop held on

May 25, 2009, staff were instructed to eliminate the Walker’s Line site from further

consideration due issues related to visibility, accessibility, inefficiencies and partnership

constraints. Only options related to the high school site and Norton Park were endorsed for

further consideration and public consultation. See Appendix A for the site locations.

4.2 Strategic Considerations

The following provides a summary of various key factors that were considered in the

development of the programmatic vision of the Alton Community Centre:

Community Need: Through the master plan community consultations, many groups expressed

the need for additional high quality gymnasiums to accommodate increased participation and to

enhance their programs. Existing double gym facilities within the City are being used at near

capacity. Most double gyms are within high schools, and most are unavailable at certain times.

The City has only one full double gym at Tansley Woods and a smaller double gym at Brant

Hills. An investment to increase service capacity in this area is timely and appropriate.

Consideration will be given to establishing a Gymnasium Users Advisory Group similar to the

Ice and Field User Groups to discuss common interests related to facility operations, safety,

facility allocation, customer service, participation forecasts and growth and so on to assist the

City’s with its planning and operations.

Trends: Court sports such as basketball, volleyball, and indoor soccer (futsal) have gained a lot

of popularity around the world and are getting greater exposure and interest in Canada. There are

growing numbers of females participating in these areas. Fitness and aerobics activities continue

to grow in popularity and are well supported in gymnasium spaces.

Demographics: Northeast Burlington is the fastest growing area in Burlington. This area will

grow in population by another 10,000 to 15,000 people within the next 5-10 years. It has the

highest concentration of families with young children and youth. Based on the 2006 Federal

Census, 47% of preschool-aged children, 42% of primary grade children, 38% of youth between

10 and 14 years old, and 36% of teens between 15 and 19 years old live in the Tansley Planning

District (Northeast Burlington). In the next 5-10 years the area will see growing numbers of

youth and teens which may suggest that a youth centre/room would be a good idea. Northeast

Burlington also has the highest concentration of visible minority groups including South Asian

and Chinese groups, particularly in the Tansley, Millcroft and Orchard Communities, and it is

expected that Alton will follow this trend. Customary trends would suggest that these


populations may not be as inclined to participate in traditional ice sports and activities, but are

more likely to take an interest in indoor court sports.

Policy and Strategic Directions: Future Focus Seven provides a number of pertinent strategic

directions related to partnership development, facilities of excellence, accessibility, inclusivity of

programs and services, promoting active living and supporting arts and cultural interests within

the community.

System Wide Service Delivery Considerations: The City’s indoor recreational facility services

generally comprise of pools, arenas and gymnasiums/multi-purpose spaces. Based on previous

service assessments, current capacity reviews and early indicators through the ongoing master

plan process, it is anticipated that the current provision of aquatics facilities is sufficient to

service north Burlington and the entire City over the next 15-20 years. In terms of ice services,

community needs will be satisfied through the addition of two new ice pads at the Appleby Ice

Centre by next year. Therefore the focus for the new Alton Community Centre lends itself to a

gymnasium based facility.

4.3 Programmatic Direction:

The general vision for the Alton Community Centre is to build a dynamic and versatile facility

featuring high quality gymnasiums and multipurpose rooms capable of accommodating a wide

range of recreational and leisure interests. The recommended baseline program for the centre

consists of 2 double gymnasiums (full height), 3 multi-purpose rooms of varying sizes and

functional capabilities, and various other support spaces including administration/customer

service, change rooms, washrooms, lobbies and service areas. Table 2 summarizes the baseline

facility space requirements for the community centre.

Table 2 - Alton Community Centre Baseline Space Requirements Space Specifications Uses

Double

Gymnasium

Approx. 82’x115’

Area 9,430 sq. ft.

Sprung hardwood floor

Dividable to 2 single gyms

Each single gym requires its own

access

Ceiling minimum 26 ft and ideally

30 ft high

Consideration for bleachers

Adjacent storage required

Basketball

Indoor soccer

Volleyball

Badminton

Fitness/Yoga/Aerobics

Gymnastics

Drop-in/after school activities

Martial arts

Dance

General recreation/other

Training, clinics/camps

Tournaments and Events

Multi-Purpose

Rooms

Non-dividable minimum area of

1,500 sq ft

Dividable room approximately

2,500 sq ft

Storage and cupboards

Natural lighting

Potential resilient floor

Instructional classes

Preschool programs

Seminars

Workshops

Low impact recreation/ exercise

Seniors programming/centre

Youth centre/leisure space


Multi-Purpose

Rooms cont’d

Potential plumbing fixtures i.e.

sinks, washrooms

Acoustic walls/dividers

Equipment and furnishings as

required

Hobby/special interest groups and

programs

Music, arts and drama

Community meetings

Socials/birthday parties

Administration

Area

Approximately 1,500 sq ft

Offices

Customer service Area

Staff area

Small board Room

Supply and photocopy room

Customer inquiries and

information

Program registration and facility

rentals

Centre administration

Business meetings

Other Support

Spaces

Male, female and family change

rooms with lockers and modest

shower facilities, fully accessible

Public washrooms, fully accessible

Lobbies/viewing galleries

Janitorial/storage/ receiving areas

At this time, the idea of providing a multi-purpose room that is conducive to youth activities is

being contemplated due to the large number of youth and teens projected in the area and to take

advantage of synergies with the planned high school and other youth oriented initiatives planned

in Norton Community Park (i.e. skate park, outdoor basketball court, etc). Another multi-purpose

room will likely have a strong orientation towards preschool programs and activities during the

daytime to accommodate the many young families in the area. However these space are not

anticipated to be dedicated spaces.

At the same time, with the increased capacity of multi-purpose rooms in the area, there may be

an opportunity to dedicate the Youth/Seniors Room at Tansley Woods for seniors programming

and leisure space. The Seniors Board of Management have expressed an interest in providing

enhanced services and opportunities for seniors in north Burlington and are prepared to assist

with funding for this initiative. Tansley Woods would likely offer a more suitable environment

for seniors with the availability of the pool and library facilities, as opposed to the Alton Centre

which would be orientated more towards youth.

Arts programming is another key dimension that will be considered in the design of the Alton

Centre. Innovative strategies to accommodate arts programming through the shared use of

resources could be available depending on the partnership model that evolves for this initiative,

as discussed later in this report.

Where possible, the centre will be complimented by outdoor features and amenities that will

enhance services and the experience of facility patrons and the general community. Parking and

pedestrian circulation will be efficient and safe, and consideration will be given to

accommodating individuals arriving by bicycle, transit and other modes of transportation as well

as people with physical disabilities. The facility and site will be designed to a high architectural

standard in accordance with the Council approved urban design guidelines for the Alton

Community.


4.3 Partnership Opportunities

Partnership opportunities are a key consideration for the Alton Community Centre initiative.

Partnerships can enhance the scope and quality of services and amenities, provide programming

and operational synergies, add to the vitality of the facility and potentially achieve efficiencies

and cost savings. The sites under consideration provide varying degrees of partnership

opportunities. Major partner prospects for this initiative include the Halton District School Board

and the Burlington Public Library.

The Halton District School Board is planning a new high school on its site at the northwest

corner of Dundas Street and Tim Dobbie Drive providing various recreational and cultural

resources for community use (i.e. gymnasiums, classrooms, arts facilities, sport fields). All

funding and approvals are in place for this initiative, and the land purchase is being finalized.

Construction is scheduled to begin in Spring 2010 and opening of the facility is scheduled for

September 2011. The Board is receptive to capital partnerships provided there are demonstrated

mutual benefits in terms of shared resources, enhanced student opportunities and experiences,

and operating efficiencies and capital cost savings.

The Burlington Public Library has identified a future branch library for northeast Burlington,

preferably within the Alton Community. The Walkers Line site does not meet the locational

requirements of the Library Board, however, either of the Dundas Street sites would meet their

needs. Library staff have investigated numerous joint school/public library facilities in Ontario

and have expressed interest in pursuing such a model in Burlington.

In addition, the City issued a Request for Expressions of Interest to identify any other community

or service organizations/providers that would be interested in securing dedicated space within the

Alton Centre at their own cost. A notice for the RFEI was e-mailed to all community/stakeholder

groups that deal with the Parks and Recreation Department, and an advertisement was placed in

the Burlington Post. Various provincial sport organizations were also notified of the opportunity.

The RFEI produced 7 responses including various established community organizations, some

smaller community clubs, and a couple of private/commercial interests. The results of the RFEI

are attached as Confidential Appendix B.

The RFEI process was intended to identify viable interests and to assist with the facility planning

and conceptual design. A formal RFP is being undertaken to solicit partners depending on the

capacity available within the preferred option. The RFP will be open to any organization to

respond. The RFP process will be completed through June/July 2009 with a report to Council

anticipated in September 2009.


4.4 Development Options

A number of options were developed by the City’s consultants based on available sites,

programmatic needs and vision, partnership opportunities and Council directions. Table 3

provides a description of the 3 options that were developed as per Council’s direction. Council

had the opportunity to preview Options 1 and 2 at a Special Community and Corporate Services

Committee Workshop on May 25, 2009. Option 1a is a new option that was developed as per

Council’s direction.

Table 3 - Alton Community Centre and Library Development Options

Option 1

(Appendix C)

Option 1a

(Appendix D)

Option 2

(Appendix E)

Location Alton High School Site Alton High School Site Norton Park

Partners Halton District School

Board

Burlington Public

Library

City

Other TBD

Halton District School

Board

Burlington Public

Library

City

Other TBD

Burlington Public

Library

City

Other TBD

Indoor

Features

3 double gyms (1.5

City and 1.5 School)

3 multipurpose rooms

(one dividable)

Combined school/

public library

Additional school

resources (arts

classroom, studio

theatre, cafeteria)

Potential partner space

4 double gyms (2.5

City and 1.5 School)


(one dividable)

Combined school/

public library

Additional school

resources (arts

classroom, studio

theatre, cafeteria)


2 double gyms


(one dividable)

Public library


Outdoor amenities

(outdoor basketball

court, playground,

skate park)

Combined

Outdoor

Features

School/

Norton Park

1 lit artificial turf

sports field on school

site


sports fields at Norton

Park


sports field on school

site

2 lit artificial turf sports

fields at Norton Park

1 lit natural turf field

and 1 practice field on

school site

1 lit artificial turf sports

field at Norton Park

GFA

(sq. ft.)

School 170,000

Library 12,000 (7,000

Library Board + 4,800

from School)

Community Centre

37,000

Available Partner

Space 20,000 ±

School 170,000

Library 12,000 (7,000

Library Board + 4,800

from School)

Community Centre

48,000

Available Partner

Space 10,000 ±

Library 9,000

Community Centre

44,330

Available Partner

Space 20,000 +

Cost *(Incl. library

collections @

$800,000)

C.C.

Library*

Site Dev.

$9,842,000

$2,907,000

$1,500,000

$14,249,000

C.C.

Library*

Site Dev.

$12,768,000

$2,907,125

$1,500,000

$17,175,000

C.C.

Library*

Site Dev.

$12,412,000

$3,509,000

$2,250,000

$18,171,000


4.5 Analysis and Staff Position

The following provides an analysis of the various options based on a set of criteria:

Table 4 - Options Analysis

Criteria Option 1 Option 1a Option 2

Visibility/

Community

Identity

Very Good

Dundas St. exposure

Very Good

Dundas St. exposure

Very Good

Dundas St. exposure

Promotes

Synergies and

Partnership

Very Good

3-way partnership

Consolidated gyms and

libraries

Shared use of

facilities/park

Very Good

3-way partnership

Consolidated gyms and

libraries

Shared use of

facilities/park

Good

2-way partnership

Promotes

Facilities of

Excellence and

Sport Tourism

Very Good

3 double gyms

3 lit artificial turf fields (2

at Norton Park, 1 at

school)

Very Good ++

4 double gyms

3 lit artificial turf fields (2

at Norton Park, 1 at

school)

Fair

Separated gymnasium

resources (2 at centre and 1

full double gym at school)

1 lit artificial turf field at

Norton Park and 1 lit

natural field and a small

practice field at the high

school

Accessibility/

Central

Location

Very Good

More central to numerous

residential communities in

north Burlington

More accessible by

bicycle, walking, transit

Planned BRT stop at site

Very Good



north Burlington

More accessible by


Planned BRT stop at site

Very Good



north Burlington

More accessible by


Planned BRT stop near site

Realize

Economic/

Financial

Benefits and

Efficiencies

Very Good

Save 3 ha of land at

Walkers/ Hwy. 407.

Returning this site to

employment use would

have economic benefits

(i.e. jobs, tax revenue, etc)

Save on site development

costs i.e. share use of

parking (off-setting peak

times)

Leverages school facilities

to reduce community

centre space requirements

(i.e. combining gym

single gyms to create full

double gyms)

Potential savings of

design, management and

construction costs through

economies of scale

Sport tourism business

benefits

Very Good


Walkers/ Hwy. 407.





Save on site development

costs i.e. share use of

parking (off-setting peak

times)

Leverages school facilities

to reduce community

centre space requirements

(i.e. combining gym single

gyms to create full double

gyms)

Potential savings of

design, management and

construction costs through

economies of scale

Sport tourism business

benefits

Good


Walkers/ Hwy. 407.





Some economies of scale

savings


Criteria Option 1 Option 1a Option 2

Minimizes

Local

Residential

Community

Impacts (traffic,

green space,

etc)

Good

Potentially higher traffic

convergence to site

Does not impact planned

parklands/green space

Very active all day long –

no pause in activity

Good


convergence to site

Does not impact planned

parklands/green space

Very active all day long –

no pause in activity

Fair


convergence to the general

area

Reduces green space in

Norton Park

Enhanced

services and

convenience

Very Good

More services and

facilities under one roof

Bigger library that option

2

Potential accommodation

of arts programming

interests

Maintains 3 premiere

fields and parks

Very Good +

More services and

facilities under one roof

More gyms= more diverse

program opportunities

Bigger library than option

2

Potential accommodation

of arts programming

interests

Maintains 3 premiere

fields and parks

Good

Consolidates library and

recreational services

Reduces park services

Community

Need

Very Good

Provides a significant

amount of high quality

sport fields and

gymnasiums to support

local sport development

and growth

Very Good +

Optimizes amount of high

quality sport fields and

gymnasiums to meet

growing community sport

needs

Fair

Improves provisions and

conditions for local sport

needs

Loss of one artificial turf

field at Norton Park

School football filed and

practice field may revert to

natural turf. School would

consider artificial turf field

only if they were building

only one field without a

secondary practice field.

Community

Acceptance

Very Good

Positive feedback

Very Good

Positive feedback

Fair

Concerns noted about loss

of green space

Based on the analysis above, staff are recommending that the community centre and library be

incorporated on the Alton high school site as per Option 1a, for the following reasons:

Visible location offering a high level of community identity and opportunity for a

community landmark facility

More centrally located to the various residential communities in north Burlington and

easily accessible by walking, bicycling and future transit services.

Promotes synergies and optimizes partnerships through the consolidation and shared use

of facilities i.e. sport fields, gymnasiums, arts resources and library resources and

potentially joint programming (youth services), marketing and operations

Realizes economic benefits in terms of land efficiency, economies of scale and capital

cost savings, project management efficiencies, and sport tourism opportunities

Does not impact parks and local green space provisions


Enhances customer service and convenience in terms of the scope of facilities, amenities

and service/program offerings within the facility including potential accommodation of

arts program interests, bigger and better library, more gyms, etc.

Provides optimal number of high calibre sport fields and gymnasiums

Favourably received by the community at a public open house held on June 2nd

The City and School Board are already engaged in an extensive partnership arrangement

(including collegiate pools) and a have a history of working collaboratively for the

benefit of students and the broader community. The School Board also have an

agreement with the Burlington Public Library for a branch library at Kilbride Public

School. Of course the City and Library have very successful partnership arrangements at

the Brant Hills and Tansley Woods Community Centres

All parties have funding approved for their respective initiatives

Option 1a is more limited in terms of potential partner space offering approximately

10,000+ sq. ft., while Option 1 may provide 20,000 + sq. ft.

An opportunity like this may not present itself again

Options 1 and 1a are differentiated by the inclusion of one additional double gym in Option 1a.

Staff feel that there is merit in considering this additional resource for the following reasons:

serves community needs for the long term

provides a major city-wide resource

provides greater flexibility and capacity to facilitate a broader range of recreational and

leisure interests year round

better responds to growing interest in court sports (i.e. basketball, volleyball and indoor

soccer) as well as increased female participation in these areas

drastically enhances the quality and calibre of gymnasiums in the City

provides an additional venue that meets the technical requirements for a variety of sports

and activities in terms of ceiling heights, court sizes/markings, flooring, run-out zones,

equipment, etc. which is currently an issue with the current supply of gyms in the city

enhances local sport programs, quality of play, safety, athlete development and

competitive opportunities and raises Burlington’s profile as a leader in sport development

and excellence

provides enhanced opportunities for students (not only in the Alton High School)

can attract and accommodate major tournaments and events at the provincial and

potentially national level

provides enhanced customer service for the users of the facility (from facility booking to

on-site facility operating staff, set-up/clean-up) over what is currently experienced in high

school gyms

opportunity to take advantage of favourable economic/construction market conditions, as

well as potential economies of scale savings through the tendering of a large project to

build an additional gym facility at the best price

efficiencies increase with the operation of multiple gymnasiums

greater efficiencies for program providers from a volunteer resource and co-ordination

perspective by concentrating activities in one location

ensures more consistent availability and eliminates scheduling conflicts and bump outs as

currently experienced by high school gym users

currently, there are 9 high school double gymnasiums, 2 city double gymnasium, and

several smaller double gyms in various newer elementary schools. City gyms are used for


a broad range of recreational uses, while school gyms are used for sports programs. The

highest demand is for the high school gyms due to their size and ceiling heights to

accommodate various sports. Primetime demand for gymnasiums is typically Monday

through Thursday from 6 pm to 10 pm for a total of 144 hours/week of primtime. Within

this timeframe most schools typically reserve at least 1 night, and some 2 nights for

school activities and uses, while other high schools prefer to start community rentals later

in the evening after 7:30 pm or 8 pm. Staff estimate that within this primetime period 65

of the 144 hours potentially available are utilized for school activities. The remaining 79

hour/week are available for community use and are used at a high rate of 80-90%.

Community groups continue to request additional double gyms during primetime to

accommodate their current program needs and ongoing growth. The City has found it

challenging to accommodate these needs.

4.6 Partnership Development

City staff have been working closely with senior library and school officials over the past several

months to develop the 3-party joint facility concept (Option 1 and 1a) and a Memorandum of

Understanding (“MOU”) outlining various key principles, requirements and responsibilities for

moving forward with this initiative. The conceptual plan was developed collaboratively between

the Board’s architect Svedas Koyonagi Architects Inc. and the City’s feasibility consultants F.J.

Galloway Associates ltd. and Malhotra Nicholson Sheffield Architects Inc. The MOU was

facilitated by Tim L. Dobbie Consulting Ltd. The MOU is intended to be a legally non-binding

document except for the obligations of the parties to pay for the architect’s fees for detailed

design and the preparation of tender documents.

Senior staff from all parties support the conceptual plan and the MOU. The conceptual plan

(Option 1a) has also been reviewed and is supported by senior City planning and development

staff. At the time of writing this report, senior school and library officials were preparing to bring

forward the conceptual plan and MOU for their Board approvals on June 17th

and June 18th

respectively. Final approval is required by City Council in order to proceed. School officials

have requested notification of the City’s decision by June 2009 in order to commence the project

and meet their timelines. Any delay in approvals may jeopardize this unique opportunity.

Accordingly, staff request Council’s approval of Option 1a and the MOU framework document

attached as Appendix F.

Should Council proceed with this arrangement the following considerations should be noted:

The City would have ownership of the community centre and library facility asset on

Board property. No reimbursement required by the School Board for the use of its land

The design of the facility will be integrated functionally however efforts will be made to

ensure that each partner component maintains a distinct identity through the use

architectural features and materials

Provisions will be made to integrate the design of the project site with Norton Park in

order to ensure consistency in design, construction standards, alignment of driveways,

safe pedestrian connections and so on in order to convey the image of an integrated

community complex as opposed to two separate entities.

Every effort will be made to meet the specifications required for community sport and

tournament needs


The detailed design will be undertaken by the School Board’s architect Svedas Koyonagi

Architects Inc. SKA have extensive experience in school designs including gymnasiums

and library facilities

The City and Library may retain additional consultants to provide advice and to support

the design process

The project in whole will be tendered through the School Board

The project will be managed by the School Board including all quality, schedule and cost

control

The project will go through the City’s site plan approval process and conform to the

Council approved urban design guidelines for the Alton Community

There will be opportunities for community input into the detailed design

The final design and cost allocation will require approval from all parties

Each party will be responsible for paying the full cost of their share of the facility, site

development costs as well as soft costs (project management, design, furnishings, etc)

Various teams will be launched at different stages of the project with representation from

all parties including design/site plan team, legal team (multi-party agreement),

construction management team, operational start-up team, and potentially a facility

governance committee

A multi-party agreement will need to be executed prior to tendering the project

The City and Library would be responsible for ongoing capital repairs and renewal of

their own facilities, with a preference for a more co-ordinated approach to asset

management

Each party will be responsible for the operation of their own facilities including

associated liabilities and risks

The disposition of the currently owned site on Walker’s/Hwy. 407 will need to be

investigated and reported back to Council in the Fall 2009.

4.6 Next Steps

Table 5 provides an estimated timeline for the project suggesting a very aggressive schedule:

Table 5 - Estimated Project Timeline

# Activity Timeline

1. Implement Project Management Structure and Team Early July 2009

2. RFP for Partners June - July 2009

3. Schematic Design – Initiate Site Plan Approval Process July 2009

4. Draft Multi-Party Partnership Agreement July – August 2009

5. Design Development – Finalize Site Plan August – September 2009

6. Council Approval of Agreement, Design/Site Plan and RFP Sept/Oct 2009

7. Construction Drawings and Specifications Oct – Dec 2009

8. Tender and Council Approval Jan – March 2010

9. Construction April 2010 – August 2011

10. Building Commissioning July – August 2011

11. Completion and Opening September 2011


5.0 FINANCIAL MATTERS:

5.1 Capital Cost and Funding

Table 6 below provides a summary of the staff revised cost estimates for Option 1 and Option 1a.

The cost of the community centre under Option 1 is estimated at $11M. The cost of the

community centre under Option 1a is $14M which reflects the additional cost for the additional

double gym. The cost of the library under both options is $3.2M. There may be additional costs

associated with the library related to specialized consultants as well as a potential contribution

towards shared common areas and lobbies within the community centre which will be

determined at the detailed design stage.

Table 6 - Option 1 and Option 1a Cost Estimates Building

Component

Area

ft2

Unit

Cost/

ft2

Construction

Costs

Other

Costs1 @

40%

Total Cost Cost

Allocation

Op

tio

n 1

Community Centre 37,000 $190 $7,030,000 $2,812,000 $9,842,000 $11,042,000

(City) Site Dev – City2 $1,200,000 Incl. $1,200,000

Branch Library 7,000 $215 $1,505,000 $602,000 $2,107,000 $3,207,000

(Library) Site Dev. Library $300,000 Incl. $300,000

Collections $800,000

TOTAL Option 1 $14,249,000

Op

tio

n 1

a

Community Centre 48,000 $190 $9,120,000 $3,648,000 $12,768,000 $13,968,000

(City) Site Dev - City $1,200,000 Incl. $1,200,000

Branch Library 7,000 $215 $1,505,000 $602,000 $2,107,000 $3,207,000

(Library) Site Dev. – Library2 $300,000 Incl. $300,000

Collections $800,000

TOTAL Option 1a $17,175,000 1 Includes 7% design, 10% fit-up, 5% LEED, 3% project management and special requirement, 15% contingency. 2 Site development includes parking, grading, drainage, walkways, plazas, landscaping and signage.

Table 7 below provides a summary of the funds approved in the 2009 Capital Budget and

Forecast. Based on the approved 2009 Capital Budget and Forecast a total of $12.6M is budgeted

for the Alton Community Centre and $3.9M for the Northeast Library over the next 3 years.

However, subsequent to the approval of the 2009 Capital Budget and Forecast, the 2009

Development Charges (DC) Background Study and DC calculation for growth related projects

was calculated identifying the funding available from growth (DCs). As noted in the background

study, the recreation facilities capital costs (fundamentally Alton Community Centre) are well in

excess of the service level cap (eligible funding from DCs). Consequently, the DC funding

allowed for the community centre is less than the budget and forecast amount. As part of the

annual budget process for 2010, this growth related project would be aligned with the funding

splits for growth and non-growth funding as depicted by the 2009 DC Background Study to

ensure the service level cap is adhered to. The funding for the 2009 capital budget year is fully

financed, however adjustments are required to amend the forecast years to ensure the service

level cap and DC calculations are maintained.

The Recreation Facility Development Charges (RFDCRF) funding will therefore need to be

reduced from the total budget amount of about $9.3M to near $6.8M. This is a reduction of


approximately $2.6M in development charge funding for the Alton Community Centre project.

Moving forward, this essentially reduces the City’s funding for the project (through the reduction

in growth-related funding) to approximately $10M. Library funding has not been impacted by

the new development charge calculations.

Table 7 - 2009 Capital Budget and Forecast Funding Provisions and Amendments

Project Prior

Years 2009 2010 2011

Total

Funding

2009 Budget

& Forecast

Revised

Funding

Available

Alton Community

Centre $1,450,000 $10,605,000 $540,000 $12, 595,000 $10,000,000

Northeast Branch

Library $275,000 $150,000 $3,190,000 $300,000 $3,915,000 $3,915,000

Combined Total

$275,000 $1,600,000 $13,795,000 $840,000 $16,518,500 $13,915,000

Based on the revised funding available, Option 1 requires an additional $1M in funding, and

Option 1a (“Preferred”) requires an additional $4M in funding for the community centre

component.

Table 8 below provides a proposed strategy to finance the additional $4M required for the

recommended Option 1a.

Table 8 - Funding Strategy - Option 1a

Funding Source Amount

1. Recovery from sale of land (representing lower threshold) $2,700,000

2. Prior-approved funding from favourable tender(s) i.e. Appleby Ice

Centre Expansion

$400,000

3. Draw from Hyrdo Reserve Fund $900,000

TOTAL $4,000,000

With respect to financing the additional $4M required for Option 1a, it is recommended that the

primary source of funding be provided through the recovery from the sale of the original

community centre site, which is identified here as an amount of the acquisition purchase price of

land of $2.7M. Further information related to the potential disposition of this property is

provided in Confidential Appendix G. Any additional funding necessary to augment this is

recommended to come first from the $400,000 of tax supported debt that remains available from

the favourable tender of Appleby Ice report (PR-13/09) and not utilized as part of the Canada and

Ontario Infrastructure Stimulus Fund Project (CSI-07/09), and secondly, up to $900,000 from the

Hydro Reserve Fund. Staff recommend funding from the Hydro Reserve Fund given the

uniqueness of the partnership opportunities of this project. Staff did pursue the opportunity to

capitalize on any prior approved P&R capital projects that have not commenced, but were unable

to identify such projects at the time, however will continue to pursue this avenue.

If Council chooses Option 1, staff recommend funding the additional $1M through the recovery

from the sale of lands of the original community centre site on Walkers Line.


In addition, it should be noted that consistent with the City’s capital financing policies,

advancing the 2010 funding for this project requires that all reserve funds be transferred at the

time of approval, however any debt financing will be provided for the approval of the tender

award which is anticipated for winter/spring of 2010. The actual debt financing is consistent with

the City’s budgeting guidelines, even though a commitment has already been made.

From a cash-flow perspective, depending on the potential growth revenue in development

charges, the city will be required to borrow approximately $2.6M of growth related funding, in

accordance with the growth related borrowing policy, given the available recreation facility

development charges fund being at about $4.1M of the required $6.7M proposed to be used for

the community centre to be financed. In addition, growth related funding guidelines may have to

be adjusted in order to ensure balances in reserve funds accommodate any necessary borrowing

requirements.

In addition, staff will explore other potential funding opportunities including the FCM Green

Municipal Fund and corporate sponsorship and naming rights, subject to School Board approval.

It should be noted that the School Board is not able to contribute additional funds towards

gymnasiums that exceed typical provisions due to constrained funding guidelines.

In order to move forward with this partnership opportunity, staff request pre-approval of the

2010 budget forecast as amended as well as approval of the additional funding required for the

recommended Option 1a. In addition, staff propose to advance all 2011 Alton Community

Centre and Library related projects to the year 2010 as part of the 2010 capital budget process.

Pre-approval of funding is necessary in the event that the tender process is expedited early in

2010 before the approval of the City’s 2010 capital budget and to solidify the City’s financial

commitment to the project. It should also be noted that any approved partners that emerge

through the RFP process will be expected to cover 100% of their capital requirements, however

approved partners may be eligible for financing through the City’s joint venture capital financing

policy.

Staff advise that the Alton Community Centre is one of many initiatives evolving out of the

Parks, Recreation and Cultural Assets Master Plan. However, this initiative has been identified

for many years in prior approved facility master plans and capital budgets and forecasts.

Significant funding will be required to support all other initiatives currently being considered or

that evolve as priorities out of the broader master planning study. Funding strategies will be

investigated for all other recommended initiatives through the upcoming budget process.


5.2 Operating Implications

Table 9 provides the estimated operating requirements for the new Alton Community Centre and

Library based on various comparable benchmarks:

Table 9 - Operating Forecast – Full Year (2009 Dollars)

Community Centre Library Comments

Expenditures $800,000 - $850,000 $630,000 Staffing, utilities, supplies,

services, repairs, programming

Revenues ($450,000) – ($500,000) $30,000 Registration fees, facility rental

fees, recoveries, etc.

Net Operating

Budget $300,000 - $350,000 $600,000 Tax supported

Operating funds will be required in 2011 for staffing, start-up requirements and full operations

commencing in the fall of 2011. A net operating budget of about $200,000 will be required for

the start-up year. Staffing will be in place prior to the operation for set-up, training and booking.

There will be initial supply/stock-up costs. Revenue will be realized only in the fall 2011 season.

6.0 ENVIRONMENTAL MATTERS:

The Alton Community Centre will be designed towards LEED Silver uncertified standards. An

analysis of potential LEED certification and related costs will be reported during the detailed

design phase. As indicated, applications will be made to the FCM Green Municipal Fund.

7.0 COMMUNICATION MATTERS:

An open house was conducted on June 2nd

at the Brant Hills Community Centre to share the

various conceptual options and receive feedback from the community. Notification letters for the

open house were sent to all residents within the Alton Community as well as residents within the

Millcroft Community that reside within 120 m from the 2 alternative sites along Dundas Street.

Another 600 notification letters went out to community groups and service providers advising

them of the open house. The open house was also advertised in the Burlington Post.

Approximately 20 residents attended providing favourable comments for Options 1 and 1a (joint

high school and community centre). Concerns were expressed about the potential of losing green

space with Option 2 - Norton Park Option 2. Appendix H provides a summary of the open house

consultation results.

As this initiative progresses through the detailed design and site plan approval process, more

opportunities will be provided for community input. In addition the City will raise the awareness

and profile of this important initiative through a range of communication strategies such as a

project web page, media releases and City Talk.


8.0 CONCLUSION:

City staff and consultants have completed their investigation on potential options for the

development of the Alton Community Centre and Library. Staff are recommending Option 1a

which consolidates the high school, community centre and branch library on the Halton District

School Board property at the northwest corner of Dundas Street and Tim Dobbie Drive as

outlined in the Memorandum of Understanding attached for Council’s approval. This option will

optimize the number of high quality facilities to serve the community over the long term, attract

tournaments, promote synergies and enhance services and programs (i.e. combined bigger

library, opportunity for community arts programming, etc), provide a more substantive and

dynamic facility in a more visible location, realize economies of scale and capital cost savings,

land use efficiencies, and elevate Burlington’s profile as a leader in sport development and

excellence.

Staff have worked closely with senior library and school officials to develop and test this option

over the last several months. All parties are fully supportive of this initiative and approvals are

being sought from the respective Library and School Boards at the time of writing this report. In

order to join this unique opportunity for the Alton Community Centre, a decision is required at

this time.

Respectfully submitted,

Jim Seferiades, Planner – Business Services

Parks and Recreation Department

Copy filed: s:\inet\


Appendices: APPENDIX A – Alton Community Map

APPENDIX B “CONFIDENTIAL” – RFEI Results for Alton C.C.

APPENDIX C – Option 1

APPENDIX D – Option 1a

APPENDIX E – Option 2

APPENDIX F – Memorandum of Understanding

APPENDIX G “CONFIDENTIAL” – Alton Land Matter

APPENDIX H – Public Open House Results – June 2, 2009

Staff / Others Consulted: Name Telephone

Gerry Cullen, HDSB

Bill Wotherspoon, HDSB

Maureen Barry, BPL

Kathryn Rogers, BPL

Susan Fitzgerald-Bell, BPL

Tony Svedas, SKA Inc.

Fred Galloway, GA Inc.

John Nicholson, MSNA Inc.

Tim Dobbie, TLD Consulting Inc.

Leo DeLoyde, D&I

Joan Ford, Finance

Anne Marie Coulson, Finance

Ron Steiginga, Legal

Erika Kubota, Legal

Chris Glenn, P&R

Rob Peachey, P&R

Charlotte O’Hara-Griffin, P&R

Denise Beard, P&R

Heather Pilling, P&R

Cathy Lamb, P&R

Stephanie Venimore, P&R

Jen Spence, P&R

Jamie Tellier, Planning

Fred Gottschling, Planning

(905) 639-3611 ext. 100

(905) 639-3611 ext. 101

(905) 315-0399

(905) 335-7600 ext. 7883

(905) 335-7600 ext. 7798

(905) 335-7600 ext. 7655

(905) 335-7600 ext. 7581

(905) 335-7600 ext. 7366

(905) 335-7600 ext. 7771

(905) 335-7600 ext. 7722

(905) 335-7600 ext. 7488

(905) 335-7600 ext. 7373

(905) 335-7859

(905) 335-7888 ext. 3

(905) 639-5722

(905) 335-1996 ext. 224

(905) 335-7600 ext. 7892

(905) 335-7600 ext. 7679

Notifications: Name Mailing or E-mail Address

Special Instructions: Issue Appendices B and G Confidentially

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