11. LANSDOWNE PARK - DESIGN COMPETITION PARC LANSDOWNE -
CONCOURS D’AMÉNAGEMENT |
Committee recommendationS
That Council:
1.
Initiate a design
competition process for Lansdowne Park based on the Rights to Development
approach outlined in this report, contingent on the approval by Planning and
Environment Committee and Council of the final Design Brief;
2. Consider funding in the amount of $350,000 as part of Council's deliberations of the 2008 Budget, in order to initiate and conduct the subject design competition.
1. entreprendre un concours d’aménagement pour le parc Lansdowne en se basant sur l’approche des Droits à l’aménagement détaillée dans ce rapport, sous réserve de l’approbation de l’énoncé de projet final par le Comité de l’urbanisme et de l’environnement et le Conseil;
2. envisage
un financement de l’ordre de 350 000 $ dans le cadre des
délibérations du Conseil entourant le budget de 2008 afin de démarrer et de
diriger le concours d’aménagement en question.
Documentation
1.
Deputy
City Manager's report Planning, Transit
and the Environment dated 1 November 2007 (ACS2007-PTE-POL-0067).
2.
Extract
of Draft Minutes, 13 November 2007.
Report to/Rapport au :
Planning and
Environment Committee
Comité de l'urbanisme et de l'environnement
and Council / et au Conseil
01 November 2007 / le 01 novembre 2007
Submitted by/Soumis par : Nancy Schepers, Deputy City Manager/
Directrice municipale adjointe,
Planning, Transit and the
Environment/
Urbanisme, Transport en commun et
Environnement
Contact Person/Personne-ressource : Richard Kilstrom, Manager/Gestionnaire,
Community Planning and Design/Aménagement et conception communautaire/
Planning Branch/Direction de l’urbanisme
(613)
580-2424 x22653, Richard.Kilstrom@ottawa.ca
SUBJECT: |
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OBJET : |
REPORT RECOMMENDATIONS
That the Planning and Environment Committee recommend that Council:
1.
Initiate a design
competition process for Lansdowne Park based on the Rights to Development
approach outlined in this report, contingent on the approval by Planning and Environment
Committee and Council of the final Design Brief;
2. Consider funding in the amount of $350,000 as part of Council's deliberations of the 2008 Budget, in order to initiate and conduct the subject design competition.
RECOMMANDATIONS DU
RAPPORT
Que le Comité de l’urbanisme et de l’environnement recommande au
Conseil :
1. d’entreprendre un
concours d’aménagement pour le parc Lansdowne en se basant sur l’approche des
Droits à l’aménagement détaillée dans ce rapport, sous réserve de l’approbation
de l’énoncé de projet final par le Comité de l’urbanisme et de l’environnement
et le Conseil;
2. d’envisager un financement de l’ordre de
350 000 $ dans le cadre des délibérations du Conseil entourant le
budget de 2008 afin de démarrer et de diriger le concours d’aménagement en
question.
EXECUTIVE SUMMARY
Assumptions
and Analysis:
This report begins by outlining the reasons for holding a design competition for Lansdowne Park, follows with a description of a basic two-stage competition process, and highlights three different ways in which competition awards and the subsequent implementation of the winning scheme can be approached.
The report concludes that a competition which follows a “Rights to Development” approach will harness creativity and deliver a practical and doable new vision for Lansdowne Park in a timely matter. This approach includes the requirement that proponents provide a detailed pro forma that ensures the design can be built as envisioned so as to increase public confidence in the deliverability. The report provides a proposed schedule for a “Rights to Development” competition and shows the process running from the end of November 2007 to the beginning of December 2008, but notes that this one-year time frame is possible but remains extremely tight.
In order to understand the true value and potential of Lansdowne Park, the report notes that the City will need to undertake several studies such as land appraisals, environmental site assessments, serviceability and transportation impact studies. The information gathered will be used to ensure that the direction in a Design Brief leads to innovative, but realistic and affordable, design solutions. The report notes that prior to the public launch of a design competition, staff will return to Committee and Council for approval of the guiding design principles, business plan principles, the procurement process, and other components of the Design Brief that will direct the competition.
Financial
Implications:
Funding in the amount of $350,000 for the design competition is required in the 2008 Budget. The funds are required to prepare strategic and technical studies, undertake public consultation, acquire professional services, and run the competition.
Public
Consultation/Input:
Public and stakeholder consultation will input into the preparation of a Design Brief. The findings from this process will be brought back to Committee and Council. Consultation with the public will also continue at key points in the design competition process. It is anticipated that the first public event will occur this December, to further develop the guiding design principles.
RÉSUMÉ
Le rapport présente tout d’abord la raison
d’être d’un concours d’aménagement pour le parc Lansdowne, décrit ensuite un
concours de base en deux étapes, puis présente trois différentes façons de
gérer l’attribution du contrat dans le cadre du concours et la mise en œuvre
subséquente du projet retenu.
Dans le rapport, on en vient à la conclusion qu’un
concours qui respecte l’approche « Droits à l’aménagement »
encouragera la créativité et permettra d’élaborer une nouvelle image pratique
et réaliste pour le parc Lansdowne dans des délais raisonnables. Selon cette
approche, les proposants doivent fournir un pro forma détaillé qui garantit que
l’aménagement peut être réalisé tel qu’il a été envisagé pour accroître la
confiance du public à l’égard de la livrabilité. Le rapport présente une
proposition d’échéancier pour un concours sur les « Droits à
l’aménagement » et un processus débutant à la fin de novembre 2007 et
se terminant au début de décembre 2008, mais affirme que ce délai d’un an,
tout en étant possible, demeure extrêmement serré.
Afin de comprendre la valeur et le potentiel réels
du parc Lansdowne, le rapport indique que la Ville devra entreprendre plusieurs
études, comme des évaluations du terrain, des évaluations environnementales des
sites et des études sur la fonctionnalité et l’impact du transport. Les
renseignements recueillis seront utilisés pour veiller à ce que les demandes de
l’énoncé de projet mènent à des solutions d’aménagement innovatrices, mais tout
de même réalistes et abordables. Le rapport indique qu’avant le lancement
public d’un concours d’aménagement, le personnel devra obtenir l’approbation
par le Comité et le Conseil des principes directeurs d’aménagement, des
principes du plan d’activités, de la façon de procéder et d’autres composantes
de l’énoncé de projet qui orienteront le concours.
Répercussions financières
Il est nécessaire, dans le budget de 2008, d’allouer
un montant de 350 000 $ au concours d’aménagement. Les fonds
serviront à préparer des études stratégiques et techniques, à entreprendre une
consultation publique, à obtenir des services professionnels et à organiser le
concours.
Consultation publique / commentaires
La consultation du public et des intervenants
aidera à la préparation de l’énoncé de projet. Les résultats de ce processus
seront transmis au Comité et au Conseil. On continuera de consulter le public à
des moments clés du processus du concours d’aménagement. Nous prévoyons que la
première consultation publique aura lieu en décembre, afin d’élaborer davantage
les principes directeurs d’aménagement.
BACKGROUND
This report is in response to Planning and Environment Committee's direction to the Planning, Transit and the Environment Department, to outline the process and costs required to organize and host a design competition for Lansdowne Park.
By directing staff to prepare this report, Committee has recognized that a site as significant as Lansdowne Park is deserving of consultation, detailed thinking, scrutiny, and deliberation as its future is determined.
The benefits of determining this through a competition process are many:
Design competitions have been used successfully in other Canadian municipalities to generate designs and development plans for buildings and sites of significance. Some examples include the competitions for Downsview Park and Nathan Phillips Square in Toronto, for Cartier Concordia in Montreal, for the Art Gallery of Alberta in Edmonton, and for Point Pleasant Park in Halifax.
DISCUSSION
The following paragraphs give a general outline of the key steps in a typical design competition process. Although the detail is not given in the description of the process, it is important to state that any process would include numerous opportunities for contact with the public; these would likely include project information sessions, public workshops, the creation of a Public Advisory Group, public displays of competition submissions with opportunities for public feedback etc.
As an early step and in preparation for a competition, staff plan to consult with the public on the guiding design principles of future development. To promote public discussion, a suggested list of guiding design principles is provided in Document 1. This list is an updated version of the list contained in the report entitled “International Design Competition for the Revitalisation of Lansdowne Park” (ACS2007-CCS-PEC-0014). Following consultation with the public, a revised list of guiding design principles will be brought to Committee and Council for approval. The timing of public consultations is not yet set but given the accelerated thinking, the first event would likely occur in December of this year.
At the same time as the guiding design principles return to Committee and Council for approval, staff will also bring forward the business plan principles, the procurement process, and other components of the Design Brief for approval (description follows).
In general, competition processes all follow a similar path but diverge in the structuring of awards. Described below is a basic two-stage competition process. This is followed with an explanation of the point of divergence – the structure of awards, a summary of the perceived benefits and drawbacks of each approach, and a recommended approach for a Lansdowne Park competition.
All competition processes begin with the preparation of a Design Brief. This is a detailed document that provides information and instructions to all potential competitors.
The Design Brief includes information such as the vision, competition goals and objectives, findings from public consultation, site context and conditions, background studies, rules governing the competition, criteria for evaluating submissions, competition schedule etc. Due diligence research feeds into the Design Brief, and includes land appraisals, environmental site assessments, serviceability and transportation impact studies.
The more information that can be included in the Design Brief, the more clarity that is provided to competitors in terms of what is expected of the design solutions. Thus, in addition to design direction, the Design Brief must also include details of the business guiding principles and the procurement process. A thorough Design Brief leads to more ingenious and implementable design submissions.
The competition is launched with the public release of the Design Brief.
Stage I invites all eligible competitors to submit documents that express their interest in the competition and their desire to be considered for the second stage. Submissions generally include documentation of professional experience, qualifications and visions for the site. Competitors can also be required to provide evidence of the financial capacity to deliver.
All submissions are received and evaluated by the competition jury, a short-list of competitors is announced, and these competitors are invited to move on to Stage II.
The short-listed teams are given the opportunity to develop and submit their detailed design proposals for the site.
To ensure that the winning scheme can actually be implemented, all short-listed teams can be required to submit a detailed pro forma of their proposal. In general, these are then independently audited to ensure their accuracy. Submissions are generally evaluated based on aesthetic, technical and financial criteria.
Submissions are received by the jury and evaluated. A winning design is announced. Note that it is also possible for the jury to determine that none of the submissions are acceptable.
The approach to competition awards is where competitions tend to differ. Although awards can take many forms, awards are most commonly: monetary prizes, professional opportunities, or rights to development. The differences between these three options are summarized below.
The design competition results in a design vision for the site. This design vision:
§ Provides a clear picture of the proposed uses on the site, their sizes and their locations,
§ Identifies public and private lands, and
§ Develops the architectural imagery for the site such that the appearance of buildings is clear.
Proponents of the winning submission receive a cash award for the vision; essentially the City buys the design. The City is then responsible for implementation of the design vision.
This approach results in the most control to the City of the subsequent site development process, but the time required to deliver a final built product can be lengthy as additional procurement stages are required.
The design competition results in a design vision for the site whose components are as noted above under Monetary Prize.
Proponents of the winning submission are compensated with the right to further contracts with the City (e.g. for the refinement of the design, detailed working drawings and preparation of tender packages for the public infrastructure components of the site’s development/ re‑development etc.). The proponent works directly with the City towards implementation. Costs for professional services depend on the scope of work to be completed and are generally not included in the competition budget because those costs cannot be known until the scope of the construction work is known. The City may chose to also award the construction contract to the proponent in order to achieve further time and cost efficiencies.
This approach tends to be most common when the works to be completed are and remain under public control. This approach also gives the City a good level of control of the public elements of the site development, and could be combined with a ‘Rights to Development’ approach for the balance of the site.
In addition to producing the design vision as outlined above, all short-listed proponents are required to supply a detailed financial pro forma which confirms that their vision can be built as described and illustrated, and that it provides a financial return to the City and to the proponent. This provides some assurance to the City that in exchange for development rights, the design concept will be realized.
The winning submission’s proponents receive the right to develop the land and negotiate with the City for the transfer and/or long-term lease of the lands; terms are tied to performance and development requirements. This approach tends to be most common when some or all of the works will be transferred out of public control, whether via sale or long-term lease.
Although there is no cash prize, funding is required for subsequent tenders and contracts.
With this approach, the City has less control of the site development process relative to the previous two approaches; however, all the usual planning approvals are still required. This approach delivers the fastest timelines to a built product.
Note that a detailed pro forma could be required of the Monetary Prize and Professional Opportunities approaches. However, unless the monetary compensation for winning the design competition was substantial, it is unlikely that firms would be willing to invest the additional time and resources required by a pro forma.
Documents 2 and 3 provide a further comparison of the three approaches and the benefits and drawbacks of each.
Given the goals of an inexpensive competition process and quick implementation of a winning design vision, it is most likely that a competition that follows the Rights to Development approach will be most successful. The requirement of a detailed pro forma that ensures the design can be built as envisioned is the primary factor allowing for a quicker delivery. The absence of cash prizes or further contracts reduces the competition budget.
In choosing this option, it is essential to recognize that this option also affords the fewest post-competition opportunities for slowing the process to evaluate options and for involving the public. This option may transfer the land into private control and leave the City with the least control over the final built product. Thus, the trade-off for a faster delivery of built form is a reduction in future public control.
ALTERNATIVE PROCESS TO A DESIGN VISION FOR LANSDOWNE
PARK
The City has undertaken a number of Community Design Plan processes and it is possible to use this approach to developing a design for Lansdowne Park. In such a scenario, the City would undertake strategic studies (e.g. environmental site assessment, servicing potential etc.), consult with the public, develop a preliminary design concept for the site and complete a pro forma of this design.
The City could then go on to do detailed design work or could undertake RFP processes for the delivery of specific elements within the design concept. The City’s Strategic Projects Division in conjunction with RPAM would undertake the process of implementing the design vision.
The primary benefits of undertaking a CDP process, instead of a design competition, are the possibility of greater opportunities for public input and more involvement by City departments in determining their program needs.
The drawbacks of the CDP approach are the difficulty of delivering a final vision within one year, and the limited (or non-existent) exploration of, and debate around, potential design ideas by recognized design professionals and visionaries.
LEGAL IMPLICATIONS
There is an existing agreement between the former Region (which would have been assumed by the new City as a result of the City of Ottawa Act, 1999) and Canadian Gateway Development Corporation. A Release made in favour of the old City of Ottawa as a condition of the sale of Lansdowne to the former Region provided to Gateway: "the right to be considered pre-qualified in respect of any development or redevelopment at Lansdowne Park for a period of 10 years following the transfer". This obligation is in effect until December 31, 2009.
Also, as a condition of the sale of Lansdowne Park by the old City the former Region entered into an agreement with Canderel Management and Development Services Inc. pursuant to which it would be appointed as Project Manager for major capital improvement works to be undertaken by the Region at Lansdowne Park for an eight-year period following the transfer of the Park from the City to the Region. Thus, this obligation, which would have been assumed by the new City as a result of the City of Ottawa Act, 1999, is still in effect until December 31st of this year.
COMPETITION SCHEDULE
A proposed schedule for a “Rights to Development” competition is given in Document 4. This schedule shows the competition process running from the end of November 2007 to the beginning of December 2008, when a winning scheme would be announced. Although this one-year time frame is possible, it should be noted that it is extremely tight. In particular, the work required to prepare the Design Brief is squeezed into a three-month time period. Given that within this period, time is required for translation, web building and bringing documents to Council for approval, public consultation will have to happen very quickly.
Prior to the release of the Design Brief, the City will need to undertake background studies such as land appraisals, environmental site assessments, and serviceability and transportation impact studies. By allowing time to complete these studies, the City is given a greater understanding of the true value and potential of its asset. It is important to understand the potential value of Lansdowne Park as it compares with the cost of development/re-development of any public elements on the site. In order to ensure that the direction in the Design Brief leads to an innovative, but also realistic and affordable design, staff’s due diligence will determine the degrees of municipal subsidy that will be necessary to offset different levels of investment needed by the private sector for funding the public realm.
The availability of this information would allow the City to properly assess the benefits and affordability to the City and its citizens of any proposed design, whether the design be unsolicited or obtained through a competition process.
FINANCIAL CONSIDERATIONS
Running a competition, as in any call for services, requires funding in order to:
§ Prepare a Design Brief (conduct strategic and technical studies, undertake public consultation etc.);
§ Acquire professional services (professional advisor, fairness commissioner, legal counsel, financial services etc.); and
§ Run the competition (advertising and media, facility booking, workshops materials, document printing, public consultation, jury costs, honorarium and awards etc.).
It is estimated that a competition for Lansdowne Park that follows the “Rights to Development” approach will require a financial commitment of up to $350,000. The other two approaches would require a commitment of $400,000 or more. In all cases, efforts will be made to deliver the competition at less than the estimated amount. It is, however, valuable to compare these estimates against the costs of other similar design competitions and RFP processes.
§ Nathan Phillips Square, Toronto, Ontario (competition) - Design for revitalization of a public square. The initial budget to run the competition was set at $500,000. Final costs are unavailable.
§ CFB Downsview, Toronto, Ontario (competition) - Design to create a vision for a national urban park on the former Canadian Forces base. Total competition costs are unavailable, however honoraria alone at the end of Stage 1 totalled $500,000 and the winning team received $375,000 as an advance on professional services.
§ Dockside Green, Victoria, British Columbia (RFP) - RFEI and RFP process for the design and redevelopment of a contaminated City-owned parcel (app. size 12 acres). Council approved a maximum total budget of $774,000 for the RFEI and RFP processes.
Note that, given the timing of this report, the funds for the competition were not included in the draft budget document.
CITY STRATEGIC DIRECTIONS
Several of Council’s Strategic Directions will be furthered by a design competition for Lansdowne Park.
F Planning and Growth Management
F1 - Become leading edge in community and urban design including housing creation for those in the city living on low incomes and residents at large.
C Infrastructure Renewal
C6 - Identify key municipal facilities of city-wide significance and implement an effective remediation and restoration plan for these assets where required.
D Solid Waste and Environment
D5 - Meet the intent of Leadership in Energy and Environmental Design (LEED) standard by 2020, for existing City owned buildings to support the implementation of Council-approved environmental goals and targets
E Healthy and Active City
E1 - Support recreational facilities and programming to match population growth.
CONSULTATION
Public and stakeholder consultation will form part of the preparation of the Design Brief and will continue at key points in the design competition process.
FINANCIAL IMPLICATIONS
Funding in the amount of $350,000 for the design competition is required in the 2008 Budget.
SUPPORTING DOCUMENTATION
Document 1 - Suggested Guiding Design Principles for Initiating Public Consultation
Document 2 - Comparison of Competition Awards Structures
Document 3 - Perceived Benefits and Drawbacks of Competition Approaches
Document 4 - Proposed Competition Schedule
DISPOSITION
Planning Branch to (1) undertake the first public consultation session(s) to establish the guiding design principles for future development, (2) prepare the other components that will establish the Design Brief; and (3) return to Committee and Council with the recommended guiding design principles, the business plan principles, the procurement process, and other components of the Design Brief.
1.
Public Open Space
A substantial portion of the existing hard surface
area must be reserved as, and designed as, public open space. Open spaces
must be green and sustainable, suitable for recreational use and complimentary
to Lansdowne Park’s overall function.
2.
The Aberdeen Pavilion and Horticulture Building - Heritage Structures
The Aberdeen Pavilion: Competition submissions must showcase this nationally designated
heritage structure. The Pavilion will
remain in its current location and plans must preserve and enhance sight lines
to this building from the surrounding streets and from the Rideau Canal. The Horticulture Building: The façade of
this building has a City heritage designation.
Plans must highlight this building and propose adaptive reuse.
3.
The Rideau Canal
Proposed plans must recognize and respect this
designated World Heritage site, and propose improved public access to the Canal
and adjacent scenic pathways.
4.
Frank Clair Stadium and the Civic Centre
These facilities will be retained on site and
enhanced.
5.
Bank Street
The proposed plans must recognize Bank Street’s
designation as a Traditional Mainstreet in the Official Plan, and propose uses
and built form to accommodate that designation.
6.
National Capital Commission Lands
The plans should enhance pedestrian and bicycle
access to the recreational pathways and gardens that abut Lansdowne Park
7.
Community Focus
The opportunities for use of the site by community
stakeholders, such as local sports groups, should be enhanced.
The plan should provide for the continuation of the
seasonal Ottawa Farmers’ Market in an exterior public space.
Plans should also explore opportunities for outdoor
performance and festival areas.
8.
Sustainable Buildings
Any proposed buildings should achieve a minimum
standard of LEED Silver.
9.
Site Access and Community Connections
Proposals should improve community access to the site
and enhance the relationships between Lansdowne and the adjacent parks.
10.
Value to the City of Ottawa
Designs will be evaluated in part upon on their
ability to be implemented in a timely fashion, keeping in mind the City’s
financial ability to contribute to the redevelopment.
Rights
to Development |
Monetary Prize |
Professional Opportunities |
The City undertakes
negotiations for the lease of lands to the winning team, who has also won the
rights to develop the land. |
The winning team is awarded
a cash prize (i.e. City “buys” the rights to the design). |
The winning team has the
opportunity to negotiate contracts for further professional services relating
to the design, or design-build services. |
The winning team is
required to work with the City and stakeholders to refine the winning
design. The City directs this work,
but the cost of further design work and consultation is borne by the winning
team. Thus, the winning team must
commit to continued input and budget accordingly. |
The City is responsible for
further refinement of the winning scheme.
All work is undertaken by or through the City and all costs are borne
by the City. |
The winning team works with
the City and stakeholders to refine their design. The City directs this work and pays for the professional
services of the team to complete this work. |
The winning team is
responsible for obtaining all approvals through the planning process, as well
as all associated costs. |
The City is responsible for
implementing the winning scheme (e.g. rezoning, release of lands for
development etc). |
The City may be responsible
for implementing the winning scheme (e.g. rezoning, release of lands for
development, construction tenders etc) or it may also award construction
contracts to the winning team. |
The winning team commits to
the full delivery of all public and private elements in its design |
The City is responsible for
the delivery of all public elements.
This is financed through funds received from the transfer of lands and
other sources. |
|
Competitions and RFPs that
have used this approach: Dockside Green, Victoria Beaver Barracks, Ottawa |
Competitions and RFPs that
have used this approach: Nathan Phillips Square,
Toronto (prize money awarded to runner-up teams - encourages better
submissions). |
Competitions and RFPs that
have used this approach: Downsview Park, Toronto Lower Don Lands, Toronto Central Waterfront, Toronto Nathan Phillips Square,
Toronto |
In
all three approaches, further review and refinement is based on jury
comments, professional input and public consultation and can include a
charette process. The design process
for the Beaver Barracks site included a highly successful post-award charette
with the winning team that resulted in positive refinements to their scheme. In
all three approaches, the proposed development must go through the regular
planning approvals process. |
Perceived Benefits and
Drawbacks of each Approach |
|||
|
Rights
to Development |
Monetary
Prize |
Professional
Opportunities |
Competition
Schedule |
Competition timeframes up
to the award are identical |
||
Time
from award to Implementation |
Generally, results in the
fastest timeframes to full build-out |
Takes more time to achieve
full build out of the project |
May take more time to
achieve full build out of the project |
City
control of the process and product post-competition |
Limited by what can be
negotiated after the winning scheme is chosen |
More opportunities to
review and refine the work |
More opportunities to
review and refine the work |
Costs |
No cash awards or
professional contracts - may result in a cheaper competition process |
Potential for higher costs
due to cash award for winning scheme |
Potential for higher costs
due to award of contract. The City
receives design work from the additional payment |
Control
of land |
Sale or long-term lease of
the land; with lease, City maintains more control |
Sale or long-term lease of
the land; with lease, City maintains more control |
Sale or long-term lease of
the land; with lease City maintains more control |
Public
Involvement |
Involvement during the
competition process is identical |
||
Not as easy to facilitate
public involvement in the post-competition review process |
Easier to facilitate public
involvement in the post-competition review process |
Easier to facilitate public
involvement in the post- competition review process |
|
Delivery
of Design |
Appearance of buildings
tends to adhere closely to the image in the winning scheme |
Individual release of
parcels can lead to more variety in appearance than shown in the winning
scheme |
If the winning team does
not also control construction of buildings, the buildings may differ in
appearance from the winning scheme |
Design
Impact |
Projects designed by a
single team, over a large parcel, can be very uniform and can loose the
visual interest that comes from the input of various design teams |
Releasing parcels over time
can stimulate more varied architectural solutions that respond to changing
conditions and new innovations in design and building |
Releasing parcels over time
can stimulate more varied architectural solutions that respond to changing
conditions and new innovations in design and building |
1. Mid November, 2007 – End of February, 2008 (Preparation of Design Brief)
§ Undertake public consultation on the guiding design principles
§ Complete any required studies, such as land appraisals, environmental site assessments, and serviceability and transportation impact studies
§ Develop business case principles and the procurement process
§ Prepare background information for Design Brief (e.g. photos, base mapping etc.)
§ Draft Design Brief (and release draft for technical review)
§ Build and test web site
§ Translate all competition materials (Design Brief, web material, advertising)
§ Council approval of Design Brief
2. Beginning of March, 2008
§ Council approval of Design Brief which will detail the guiding design principles, guiding business plan principles, and the procurement process
3. Mid March, 2008
§ Launch of competition / release of design brief (Beginning of Stage 1)
4. End of June, 2008
§ Stage 1 submission deadline
§ Review of submission by staff and TAG
5. Beginning of July, 2008 (End of Stage 1)
§ Jury evaluation of submissions and announcement of short-listed teams
6. Mid July, 2008 (Beginning of Stage II)
§ Briefing of short-listed teams by Technical and Public Advisory Groups
7. Beginning of November, 2008
§ Submission of final designs
§ Public viewing (and comment period) of final designs
8. End of November, 2008 (End of Stage II)
§ Briefs to Jury by Public and Technical Advisory Groups
§ Jury evaluation of final designs and selection of preferred submission
9. Beginning of December, 2008
§ Committee and Council approval of jury’s recommended submission
§ Announcement of winning scheme
Councillor Feltmate was in the Chair.
Selma Hassan, Planner II provided a
PowerPoint presentation, which is held on file with the City Clerk. Dana Collings, Program Manager of Urban
Design and Area Planning East/South, Lauren Reeves, Planner III and Richard
Kilstrom, Manager of Community Planning and Design accompanied her.
Ray Fahey, Ottawa Association of Exposition
Managers discussed the use
of Lansdowne Park for small local trade shows.
He noted 25 events are organized on average per year, totaling 100
days. He requested the following
addition to the guiding principles:
“Preserve, enhance and improve the facilities
so that the National Capital Region continues to benefit economically from the
local trade show and exposition industry, which has been the leading business
unit at Lansdowne Park for many years and continues to grown annually.”
Mr. Kilstrom noted public consultation would
occur as an early step on the guiding design principles for future
development. As stated in the report,
following consultation with the public, a revised list of guiding principles
will be brought to Committee and Council for approval.
Councillor Hume resumed the Chair.
Des Doran read from a written submission, which is held on file with the City
Clerk. He asked for caution in pursuing
commercial interest and private development at this location and requested the
following three elements as the process proceeds:
·
Current zoning
regulations and restrictions should be published and made available.
·
There should be
no construction of any structure whose use would include or be limited to
residential purposes. This limitation
also includes uses such as a hotel, retirement home, and affordable housing.
·
There should be
no facilitating of current sports ventures as a lever for future private
commercial development of the park.
Councillor
Monette asked for a line-by-line breakdown of the
$350,000 competition budget and sought confirmation that costs would not
balloon above this amount. He
questioned how it would be funded and possible impact on the 2008 budget.
He also requested that the timeframe be shortened
with joint meetings of this Committee and the Corporate Services and Economic
Development Committee as the public consultation element. He also sought assurances that bidders would
be required to prove that they can build their proposal and have the capital to
do so.
In response, Mr. Kilstrom
explained the estimate is based on other similar competitions and the cost
would be identified as a budget pressure for the 2008 budget. With regard to public consultation, he
stated joint meetings might save a few dollars but would not shorten the
timeframe.
Councillor Qadri suggested that
one or two consultation sessions be held throughout the City as Lansdowne Park
belongs to all the citizens of Ottawa.
Mr. Kilstrom advised that a public consultation session is planned to
occur at Lansdowne Park. He noted other
tools could be utilized as well to gather public comments, similar to those
employed for the Official Plan White Papers.
In response to questions from
Councillor Desroches, Mr. Kilstrom explained the difference between the
proposed process and a community design plan.
Councillor Desroches questioned the use of the term “prize”. Mr. Kilstrom noted the chosen proposal would
be awarded development rights.
Chair Hume noted that subject to
the suggested guiding design principles, item 10:
“Designs will be evaluated in
part upon their ability to be implemented in a timely fashion, keeping in mind
the City’s financial ability to contribute to the redevelopment.”
Nancy Schepers, Deputy City
Manager of Planning, Transit and the Environment noted the guiding design
principles are a start for a discussion.
Committee and Council will approve the final principles prior to the
formal procurement process.
Councillor Harder spoke in opposition
to Councillor Qadri’s earlier suggestion with regard to consultation but
suggested the timeframe could be tightened.
She noted the community design framework should be used as a base point. She suggested part of the site be used for
other civic opportunities such as a fire station or paramedic post to improve
response times for the community.
Councillor Feltmate noted one of
the issues going forward would be keeping the timetable to one year in order
for proponents to meet deadlines and submit complete submissions. She agreed that citywide consultations are
not necessary. She sought and received
assurances that the City would not be required to proceed with the awarding of
development rights should it not be satisfied with the proposals received.
Rob Mackay, Acting Director of
Economic and Environmental Sustainability summarized that the proposed process
involves a front-end competition that will allow the selection of a consortium
to develop this project. Staff will
return to Committee and Council to identify all costs and the critical
path. An agreement will follow
outlining all the requirements the consortium must answer to, probably with a
fixed price/date certain construction in order that there are consequences
(possibly financial penalties) should delays occur.
Mr. Mackay compared this process
with the one followed for the Orléans Arts Centre, which involved approximately
20 acres of land, a 90,000 square foot facility, significant development rights
totaling $200 million in exchange for the development of the art centre and
additional activities such as a hotel, office and residential development. A high level concept and building program
for the arts centre were already in place prior to the formal process, which
cost internally over $1 million and spanned over two years.
Councillor Hunter expressed his
early excitement on proceeding with an international design competition but
suggested the draft design principles are very restrictive and preclude any
creativity from proponents. Mr.
Kilstrom and Ms. Hassan discussed the guiding principles and noted consultation
would occur with the public and the development industry. Mr. Mackay noted the issue is how much of
the public realm is pre-planned and its affordability. Following consultation, staff will return to
Committee and Council with revised principles and a business plan to move
forward.
Councillor Doucet spoke in
support of the proposed process, noting the suggested design guidelines will
begin consultation and debate on the future of Lansdowne Park. The process will set out the general
principles of development but leave the details up to the architects, the
developers and the public.
Councillor Monette expressed
support for some elements of the report, including the design guiding
principles, but noted concerns with the cost and possible overruns, in the
context of current budget pressures faced by the City. He indicated he would not support the
recommendations at this time, but asked for more information related to cost prior
to consideration by Council.
Ms. Schepers reiterated the
estimated cost is based on other similar exercises and staff will stay within
that amount. She noted the cost would
be subject to debate within the 2008 budget process.
Councillor Harder indicated she
would vote in support and touched on the upcoming debate within the 2008 budget
process.
That the Planning and Environment Committee
recommend that Council:
1. Initiate a design competition process
for Lansdowne Park based on the Rights to Development approach outlined in this
report, contingent on the approval by Planning and Environment Committee and
Council of the final Design Brief;
2. Consider funding in the amount of $350,000 as part of Council's deliberations of the 2008 Budget, in order to initiate and conduct the subject design competition.
CARRIED, with B. Monette and S. Qadri
dissenting.