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3. LANSDOWNE URBAN PARK, Aberdeen Pavilion And Horticulture Building PROGRAMMING PLAN
PLAN DE PROGRAMMATION POUR LE PARC URBAIN, LE PAVILLON ABERDEEN ET L’ÉDIFICE DE L’HORTICULTURE
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That Council:
1. Approve the programming plan, operating model, programming direction and resource requirements for the Lansdowne urban park as outlined in this report;
2. Authorize the General Manager of Parks, Recreation and Cultural Services to work with site stakeholders to finalize and execute all required operating, programming and maintenance arrangements for urban park programming, and identify any corresponding operating budget requirements in the 2014 draft budget;
3. Approve the formal transfer of the name “Sylvia Holden Park” to the park currently known as the Lansdowne Community Park; and
4. Approve an additional $2.5 million in debt authority for the Urban Park for the increased cost of the relocation, restoration and adaptive reuse of the Horticulture Building, as outlined in this report.
RECOMMANDATIONS DU COMITÉ
Que le Conseil:
1. approuve le plan de programmation, le modèle d’exploitation, l’orientation de la programmation et les besoins en matière de ressources pour le parc urbain de Lansdowne, comme le précise le présent rapport;
2. autorise le directeur général, Service des parcs, des loisirs et de la culture, de travailler avec les intervenants du site à finaliser et à mettre en œuvre les dispositions nécessaires à l’exploitation, à la programmation et à l’entretien liées à la réalisation de la programmation du parc urbain et à préciser les exigences budgétaires correspondantes dans l’ébauche du budget de 2014;
3. approuve le transfert officiel du nom « parc Sylvia-Holden » au parc actuellement connu sous le nom de parc communautaire Lansdowne (Lansdowne Community Park); et
4. approuve une augmentation de 2,5 millions de dollars de créance pour le parc urbain à cause de l’augmentation des coûts de déménagement, de restauration et de réutilisation adaptée de l’Édifice de l’horticulture, comme le précise le présent rapport.
DOCUMENTATION
1. City Manager’s report dated 9 February 2012 (ACS2012-COS-PRC-0004).
Report to/Rapport au :
Finance and Economic Development Committee /
Comité des finances et du développement économique
and Council / et au Conseil
9 February 2012 / le 9 février 2012
Submitted by/Soumis par : Kent Kirkpatrick, City Manager / Directeur municipal
Contact Person/Personne ressource : Dan Chenier, General Manager, Parks, Recreation & Cultural Services Department /
(613) 580-2424 x 24295, Dan.Chenier@Ottawa.ca
SUBJECT: |
LANSDOWNE URBAN PARK, Aberdeen Pavilion And Horticulture Building PROGRAMMING PLAN |
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OBJET : |
PLAN DE PROGRAMMATION POUR LE PARC URBAIN, LE PAVILLON ABERDEEN ET L’ÉDIFICE DE L’HORTICULTURE |
REPORT RECOMMENDATIONS
That the Finance and Economic Development Committee recommend Council:
1. Approve the programming plan, operating model, programming direction and resource requirements for the Lansdowne urban park as outlined in this report;
2. Authorize the General Manager of Parks, Recreation and Cultural Services to work with site stakeholders to finalize and execute all required operating, programming and maintenance arrangements for urban park programming, and identify any corresponding operating budget requirements in the 2014 draft budget;
3. Approve the formal transfer of the name “Sylvia Holden Park” to the park currently known as the Lansdowne Community Park; and
4. Approve an additional $2.5 million in debt authority for the Urban Park for the increased cost of the relocation, restoration and adaptive reuse of the Horticulture Building, as outlined in this report.
RECOMMANDATIONS DU RAPPORT
Que le Comité des finances et du développement économique recommande au Conseil :
1. d’approuver le plan de programmation, le modèle d’exploitation, l’orientation de la programmation et les besoins en matière de ressources pour le parc urbain de Lansdowne, comme le précise le présent rapport;
2. d’autoriser le directeur général, Service des parcs, des loisirs et de la culture, de travailler avec les intervenants du site à finaliser et à mettre en œuvre les dispositions nécessaires à l’exploitation, à la programmation et à l’entretien liées à la réalisation de la programmation du parc urbain et à préciser les exigences budgétaires correspondantes dans l’ébauche du budget de 2014;
3. d’approuver le transfert officiel du nom « parc Sylvia-Holden » au parc actuellement connu sous le nom de parc communautaire Lansdowne (Lansdowne Community Park); et
4. d’approuver une augmentation de 2,5 millions de dollars de créance pour le parc urbain à cause de l’augmentation des coûts de déménagement, de restauration et de réutilisation adaptée de l’Édifice de l’horticulture, comme le précise le présent rapport.
EXECUTIVE SUMMARY
The programming plan for the Lansdowne urban park site has been developed to support the vision of a world class park accessible to all that hosts a variety of activities that attract residents and visitors alike. Research into park programming undertaken to inform this report included consultation with the operators of similar facilities in other cities, including New York's Central Park, the Seattle Centre and Toronto's Evergreen Brick Works and Wychwood Barns. Extensive consultation was also undertaken by Phillips-Farevaag-Smallenberg (PFS) between November 2010 and June 2011 with a broad array of community stakeholders. Consultation included the distribution of an online survey to 115 organizations. The consolidated results of public input from all forums were considered in the development of the park programming proposal.
The programming proposed for Lansdowne is designed to be complementary and supportive of a variety of activities that could occur on the site. The plan focuses on the programming of the key urban park components: the Aberdeen Pavilion, the Horticulture Building, Aberdeen Square, the Great Lawn and outdoor plaza spaces and the Outdoor Rink. The plan identifies the resources and funding required to animate the park with a range of seasonal programming activities and events; while also ensuring it is a welcoming and attractive venue for events staged by community groups and private agencies or individuals.
The programming plan presented in this report was developed by a multi-disciplinary Programming Committee comprised of City staff and PFS, with outreach to key stakeholders. Programming recommendations reflect the City's declared intention that the Park should be a highly flexible programming space with readily accessible infrastructure to facilitate events, while at the same time attracting day-to-day use by residents. The plan provides proposed programming opportunities for each of the major indoor and outdoor components of the urban park. This includes a blend of direct programming initiatives best suited to each of the specific venues, as well as opportunities to optimize use of the facilities through rentals to third parties. Programming at Lansdowne will maximize the tremendous potential the site offers and capture public appetite and interest. The City’s Special Events Division will be charged with developing and delivering the programs and services required to achieve the Park’s objectives.
In addition to programming details for each urban park element, this report presents the approach to be taken for the relocation of the Horticulture Building to support its programming and adaptive reuse. Lastly, this report presents the financial requirements attached to elements of the Lansdowne site programming plan.
This report seeks Council approval of the Lansdowne Urban Park, Aberdeen Pavilion and Horticultural Building Programming Plan which has been endorsed by the Lansdowne Design Review Panel (LDRP).
The LDRP was delegated authority to ensure that the Stage 2 site plan is in accordance with the winning park design and the direction of City Council including ensuring that the Aberdeen Square area is available for location of the Ottawa Farmers’ Market, day-to-day parking in the park is not allowed, cycling connections exist between Bank Street and the Queen Elizabeth Driveway and that the shuttle services to the site do not interfere with the Great Lawn.
The LDRP has endorsed the plan set out in this report for the relocation of the Horticulture Building as part of its approval of the Stage 2 site plan with conditions. Council therefore, now is responsible for final approval of the programming related recommendations in this report.
SOMMAIRE
Le plan de programmation pour le parc urbain de Lansdowne a été préparé pour appuyer la vision d’un parc de classe mondiale, accessible à tous et qui accueille tout un éventail d’activités susceptibles d’intéresser autant les résidents que les visiteurs. Les recherches sur la programmation dans les parcs réalisées pour la préparation de ce rapport comprenaient une consultation des exploitants d’installations similaires dans d’autres villes, dont New York (Central Park), Seattle (Seattle Centre) et Toronto (Evergreen Brick Works et Wychwood Barns). Une consultation à grande échelle a également été réalisée par la firme Phillips-Farevaag-Smallenberg (PFS) de novembre 2010 à juin 2011 auprès d’un large éventail d’intervenants communautaires. Ces consultations ont donné lieu à la distribution d’un sondage en ligne à 115 organismes. Les résultats consolidés des commentaires du public sur tous les forums ont été pris en compte dans l’élaboration de la proposition de programmation pour le parc.
La programmation proposée pour Lansdowne est conçue pour compléter et appuyer les activités qui pourraient avoir lieu sur le site. Elle se concentre sur les principales composantes du parc urbain : le pavillon Aberdeen, l’Édifice de l’horticulture, la place Aberdeen, la Grande pelouse et les plazas extérieures, ainsi que la patinoire extérieure. Ce plan précise les ressources et le financement nécessaires pour assurer l’animation du parc grâce à une gamme d’activités et d’événements saisonniers, tout en veillant à ce que le site demeure un lieu attrayant pour les événements mis sur pied par les groupes communautaires, les organismes privés et les individus.
Le plan de programmation présenté dans ce rapport a été préparé par un comité de programmation multidisciplinaire composé de personnel de la Ville et de la firme PFS, qui ont notamment discuté avec divers intervenants d’importance. Les recommandations sont le reflet de l’intention de la Ville de faire du parc un espace de programmation très polyvalent, dont l’infrastructure est aisément accessible pour l’organisation d’événements, tout en favorisant une utilisation quotidienne par les résidents. Le plan comporte des possibilités de programmation pour les principales composantes intérieures et extérieures du parc urbain. Il regroupe un ensemble d’initiatives de programmation directes, adaptées à chacun des lieux, et des possibilités d’optimiser l’utilisation des installations grâce à leur location par des tiers. La programmation de Lansdowne maximisera l’extraordinaire potentiel qu’offre le site, en plus de susciter l’intérêt et d’attirer le public. L’Unité des événements spéciaux de la Ville se chargera de la création et de la prestation des programmes et des services qui permettront d’atteindre les objectifs du parc.
En plus des détails de la programmation pour chaque élément du parc urbain, ce rapport présente l’approche qui sera mise de l’avant pour le déménagement de l’Édifice de l’horticulture en vue d’appuyer sa programmation et une réutilisation adaptée à son nouvel emplacement. Enfin, ce rapport présente les exigences financières des éléments du plan de programmation du site du parc Lansdowne.
Ce rapport vise à obtenir l’approbation du plan de programmation du parc urbain de Lansdowne, du pavillon Aberdeen et de l’Édifice de l’horticulture, qui a déjà reçu l’appui du Groupe consultatif et de révision stratégique de la conception.
Le Groupe consultatif a reçu le pouvoir délégué de s’assurer que le plan du site de la phase 2 est conforme au projet gagnant d’aménagement du parc urbain et aux directives du Conseil municipal de veiller notamment à ce que la place Aberdeen puisse accueillir le marché des producteurs agricoles d’Ottawa, que le stationnement journalier y soit interdit, que des liens cyclables soient créés entre la rue Bank et la promenade Reine-Élizabeth et que le service de navette vers le site ne passe pas par la Grande pelouse.
Le Groupe consultatif a appuyé le plan décrit dans le présent rapport pour le déménagement de l’Édifice de l’horticulture dans le cadre de son approbation, sous certaines conditions, du plan du site de la phase 2. Le Conseil est donc désormais responsable de l’approbation finale de la programmation liée aux recommandations contenues dans ce rapport.
BACKGROUND
As part of the initiative for the overall revitalization of Lansdowne Park, the City initiated an international design competition for the urban park component of the site in 2009. In 2010, Council approved the winning selection submitted by Phillips-Farevaag-Smallenberg (PFS). In order to develop the programming plan for the new park elements included in the PFS design, a multi-disciplinary Programming Committee was struck comprised of City staff and PFS with outreach to key representatives of external agencies, including the National Capital Commission (NCC), festival and special event organizers, similar venue operators in other cities and the local Business Improvement Area (Glebe BIA). The programming plan outlined in this report reflects the recommendation of the Programming Committee and exhibits the City's declared intention that the Park should be a highly flexible programming space with readily accessible infrastructure to facilitate events, while at the same time attracting day-to-day use by residents.
DISCUSSION
As part of the redevelopment of the Lansdowne Park site, a new urban park will be created in the eastern section of the property behind the Civic Centre, Frank Clair Stadium and mixed-use development. The urban park will be a world class attraction, open to the public and programmed by the City on a year-round basis. The urban park’s amenities and features were developed by PFS in their winning design plan and formed the basis of discussion for the development of programming elements. The key elements include: the Aberdeen Pavilion, the Horticulture Building, Aberdeen Square, the Great Lawn and outdoor plaza spaces and the Outdoor Rink.
The plan supports the vision of Lansdowne hosting a variety of activities that attract residents and visitors alike, and are complementary to activities in the Stadium, Civic Centre and mixed-use sections of the site. The plan identifies the resources and funding required to animate the park with a range of seasonal activities and events, while also ensuring it is a welcoming and attractive venue for other agencies, community groups and private ventures to stage their events.
Each element of the urban park has its own specific history, architecture, form and function, and each has its own programming potential. The proposed programming for each element follows.
Urban Park Elements
Aberdeen Pavilion
The Aberdeen Pavilion will continue to be used as a seasonal indoor rental venue for special events and the Ottawa Farmers’ Market (OFM) activities, as well as a support space for stadium and outdoor events. Winter, late fall and early spring use will continue to be limited by the minimal heating available in the building. The facility will continue to play an important role in supporting municipal special events such as the Mayor's Canada Day Seniors’ Breakfast and Remembrance Day ceremonies, while taking on the role of supporting new special events staged on the Great Lawn or plazas surrounding the building.
The City will be responsible for scheduling and booking the Aberdeen Pavilion and for coordinating its use with OSEG and the OFM to ensure a positive visitor experience. Rental revenue expectations are based on current and expected use of the facility, as well as staffing requirements to meet client needs for access, event set-up and take-down and other operational requirements. Revenue projections assume that clients (including OSEG and OFM) will be paying market rates for the space.
Sample programming opportunities:
Horticulture Building
The relocation and adaptive reuse of the Horticulture Building is one of the key components in the overall revitalization program for Lansdowne Park. This element of the project is complex and has presented a significant challenge to the project team as they work to ensure that the objectives for the building are realized within the overall project schedule and budget.
The Horticulture Building is to be relocated on the north edge of the Lansdowne site, backing on to Holmwood Avenue. Instead of being buried within the retail and mixed-use area, it will occupy a highly visible point of intersection between the open park to the south, the gardens to the east, the residential community to the north, and the retail and mixed-use area to the west.
The moving of the building has presented a major challenge. The intent was always to move it in toto. The south pavilion is relatively straightforward because there are cross-floors and cross-walls tying the structure together and allowing a relatively conventional support system. The north pavilion, however, is a very large unsupported space, with almost no cross-bracing in either direction. An in toto move would be costly and problematic due to the north wall, which is an extremely heavy element (more than 350 tonnes) that is almost completely structurally independent of the rest of the building. In order to move this north wall, a complex bracing system would be required that would extend well out into the Holmwood Avenue corridor involving a full rail system with rollers. This in turn would create issues with underground utilities as well as the removal of a berm and mature trees along this corridor. The details of the move, particularly the move of the north wall, creates serious budget and schedule issues. Apart from the rising costs, the in toto move was threatening the overall construction schedule of the Lansdowne Park redevelopment.
The initial consideration of the relocation of the Horticulture Building was not tied to discussions of the eventual programming and adaptive reuse of the space. Instead, the two issues were treated as entirely separate. However, as part of the relocation of the Horticulture Building, Council required that a conservation report and a report on the move details be prepared. Through the process of determining the requirements to write these reports, it was ascertained that it would be impossible to accommodate moving the building in its entirety within the overall Lansdowne project schedule due to the complications with having to reinforce Holmwood Avenue to protect current aging infrastructure. This would necessitate the building of a rail system across the site, along with significant bracing. With the desire to ensure a strong public use focus and a strong integration with the public realm along Holmwood Avenue, it was concluded that retaining the north wall on the Holmwood property line would diminish opportunities for a key entry at this location. Consideration of the eventual programming became increasingly prudent.
A determination was made to deal with the move and adaptive reuse as a single design challenge where the future programming informs the move strategy and interventions. Approaching the move and adaptive reuse as a single integrated project presented significant advantages over the initial approach of treating them as two separate and consecutive projects. Under a modifed approach, the north wall will be dismantled, as well as the adjacent three bays at the north end of the north pavilion. This serves to greatly simplify the move and create major cost and schedule savings. It cuts the amount of bracing by almost one third and allows the building to be moved on dollies rather than creating an entire rail system. It also avoids a major ten month intervention and allows excavation heights to be determined not by underground utilities, but by the geometry of the move. The move plan cuts the schedule by several months and reduces the impact of the move.
In its new location, two of the three bays in the Horticulture Building will be rebuilt, with some of the openings modified, creating a significantly better functional relationship of the building to its new context. The rebuilt bays will have the same geometry and will incorporate the original steel trusses and steel windows in their original locations. The expanded north entrance will allow direct access from these areas to the gardens and orchards to the east. The north wall will become a largely glazed wall that will allow for significant natural light to fill the large pavilion space, creating a stronger connection to Holmwood, and taking advantage of the small park area created by eliminating one bay. The façade of the building will be recessed from the line of new townhouses, rather than projecting out to the sidewalk, and the rhythm and transparency of this façade will acknowledge the residential scale and nature of the Holmwood corridor.
Inside the building, the two reconstructed bays will be used to house the support functions at the north end of the building. The major multi-use area in the main part of the pavilion will be entirely within the intact part of the building, as will all the vertical circulation and public support functions at the south end. The iconic Prairie-style character of the south side of the building is the most important aspect of the building in the public imagination and the focus of the various statements of heritage value. The goal is to restore the buildng as closely as possible to its original design intent, with its wide horizontal eaves, distinctive window mullion patterns, contrasting red and buff colours, and wealth of decorative detail.
The integrated approach to relocating and reusing the Horticulture Building has been endorsed by the Lansdowne Development Review Panel (LDRP) as being consistent with the spirit of the overall adaptive reuse project and will securely position the building as a publicly-focused component within the park. It can be completed within the tight schedule and cost parameters for the project. The contemporary interventions to support the programming reflect a serious attempt to use resources wisely – to spend time and money on the most valuable of the current heritage attributes, and to add a contemporary layer that speaks to the ongoing value of the building in the revitalized park.
The Horticulture Building will be the gateway to the urban park and the central desk for a range of services to meet visitors’ needs. With an elevator from the underground parking area leading into the building’s common area, the counter will provide a reception, public information and security function. The budget contemplates a 9 a.m. to 11 p.m. operation schedule most days, with the opportunity to adjust based on seasonal variations in facility, park use and parking garage hours.
When not used for rentals, the main hall will be used for community programming, fitness programs, children and adult instructional programs, and children’s participatory programs such as camps, and drop-ins. With the opportunity to open the space up onto the adjacent outdoor gardens on the east side of the building, the hall will provide an exceptional venue for rentals and programming that can spill out into the gardens, or simply benefit from the attractive background created by the gardens for indoor events. The space may also be used on a rental basis by the organizers of the OFM or other clients staging events in the park for meetings, training, event logistics, volunteer recognition and sports banquets. It is possible that some areas of the building could be used to feature information or objects that give insight into or interpret the history of Lansdowne Park and its buildings.
The building will provide an attractive leasable space for commercial uses that complement park programming. In all, the building will offer a total of 6,000 square feet of lease space, generating approximately $210,000 annually in lease revenue ($35 per sq.ft.). The building will have a direct link to the underground parking and allow convenient connection to the park and Aberdeeen Square and a large multi-use space filling much of the open-span pavilion. This will have a strong visual connection to the gardens, with the option of opening up direct connections in the summer. The space at the north end of the pavilion will include a large kitchen that can support functions held in the hall, or be a stand-alone programmable space, connecting to the gardens and orchards. The kitchen opens up the opportunity for programming related to cooking with links to the foods and herbs grown in the Park’s gardens. In general, efforts will be made to develop programs around themes that reflect the other areas in the urban park such as gardening programs connected to the gardens, skating programs connected to the rink, etc. A special emphasis will be placed on the development of stewardship, educational and food focused programs relating to the gardens and orchard. Other areas, in the north end of the building, will provide a community meeting room, garden storage, general purpose storage, mechanical and electrical rooms.
In addition to the programming uses noted, the facility will serve as the distribution point for event support equipment required by park users and programmers (Public Address systems, temporary signage, and first aid kits) and as the location from which the beacon and display panel are programmed.
The operating budget requirement reflects a market rates approach to facility rentals and a fee for service approach to registered programming and event admissions, with some opportunity for subsidization and low cost or free park animation. It is recommended that priority times be allocated to revenue generating events as a means of optimizing revenues to offset the operating costs of the building. This will include events such as private functions, weddings and parties, fundraising events and corporate functions.
The capital budget for the relocation, restoration and adaptive reuse of the Horticulture Building is $10M. It is recommended that this be funded by $7.5M from the overall park budget of $40M and the issuance of $2.5M in debt. Such debt to be serviced and retired from the net operating surplus from the facility, estimated to be $175,000 annually.
Aberdeen Square
Special consideration will be given to Aberdeen Square where the Ottawa Farmers’ Market will reside during the May to November period. The outdoor spaces surrounding the Aberdeen Square will also play host to a variety of community events and festivals.
Program staff will act as a regular contact to Ottawa Farmers’ Market Association and will liaise with the group on a regular basis on operational, maintenance, permitting and event coordination issues. City staff will act as the City's agent for the permitting of stalls, the collection of fees and the administration of any parking voucher system implemented as part of the occupancy agreement. Staff will also assist to coordinate the seasonal set-up and take down of the market stalls, and any off-season use of the Aberdeen Square.
Great Lawn and Outdoor Plaza Spaces
Summer programming of the outdoor spaces will focus on offering inviting and interesting places to enjoy natural surroundings and spend some passive leisure time. This will be achieved largely by the design of the spaces to make them attractive and conducive to informal use. This design will be supplemented by an operational approach that will emphasize the destination as a great place to visit, with the provision of site services that emphasize safety and security, cleanliness and the availability of convenient site amenities to make the visit a unique experience. On-site services will include food services, access to washrooms, low-key animation, and rental of equipment that supports park use.
The City will plan and deliver low-key entertainment in the open spaces of the park at strategic times to encourage park use and make it a destination of choice. The range of activities might include such things as concerts in the park, busker performances, kite flying competitions, outdoor flea markets, minor sports competitions on the hard court surfaces, and theme days connected to holidays (holiday tree lighting, Easter egg hunt, Mother’s Day at the park, etc.).
The site is being designed to incorporate the amenities required to support successful special events (water, power, gas, media hook-up) and to make it attractive and economical for organizers to choose this venue to stage their events. Staff will develop a marketing plan, rental packages, operational procedures and policies and client service packages that support the development of the Great Lawn as a premier special events venue. Ongoing operational responsibilities will focus on quality support to event organizers for the use of the site, event day support to maximize visitor satisfaction, and marketing of the park as an active and lively location for community and cultural events.
Sample programming opportunities for Aberdeen Square and other open spaces:
Outdoor Skate Rink
The refrigerated skating rink will have the capacity to operate from late November to mid-March and provide an extended supervised and animated skating experience. The rink will be supervised during the hours of heaviest use in the evening hours on weekdays and all day on weekends. Skating attendants will provide general supervision, first aid, information and some animation to make the skating experience more enjoyable. Animation will include themed music sessions to enhance skating, children’s on-ice games during certain times, themed special events, late night skates, etc. There will also be the opportunity to offer skating lessons on the rink and to expand the City’s very successful “I Love to Skate” program to this location. Special activities and programming will also be developed to ensure that the rink and the entire site become an integral part of Winterlude and other community events.
Summer programming at the rink area will be developed to optimize the use of its large concrete surface. Programming ideas range from the establishment of temporary basketball or ball hockey facilities to host tournaments and instructional camps, to the development of racing tracks for remote control cars. The space is being designed to be very versatile and to provide opportunities for the evolution of programming to meet current trends.
Sample Programming opportunities:
Urban Park Public Art, Beacon and Display Panel
Staff will be responsible for the programming of the beacon and electronic display panel being installed in the urban park, including the seasonal changes to the lighting, the water flow functions of the beacon and the animation of visuals to be displayed on the electronic screen. Though the periodic changes to the beacon appear to be relatively straight forward to manage, the display panel will require more creativity and effort to keep the displays fresh and interesting. Staff will fuel the ongoing development to new materials for the panel through commissions, community artist competitions and other means to encourage community participation. Program staff will work closely with the City’s Public Art Program to ensure that appropriate material is developed and displayed on the electronic screen on an ongoing basis.
Storage for Urban Park Programming
The programming of the outdoor and interior spaces of the urban park will require a significant amount of equipment and furnishing to support public use and ensure that the site can respond to a broad range of programming and event needs. Both the Aberdeen Pavilion and Horticulture Building will have sufficient space to store a core level of equipment and furnishings required, including tables, chairs, security barriers, audio and video equipment, etc. It is anticipated that seasonal programming equipment (sports equipment for the rink and sports courts, patio furniture, etc.) may have to be moved off-site on a seasonal basis for storage.
Sylvia Holden Park - Transfer of Park Name
The former City of Ottawa honoured Sylvia Holden in 1994 for her many years of community involvement and the promotion of community recreation by naming the park at the southeast corner of Bank Street and Holmwood Avenue after her.
As part of the redevelopment of Lansdowne Park, there will no longer be a public park at the corner of Bank Street and Holmwood Avenue. While there will be a substantial amount of public space throughout the mixed-use area, staff recommend that the commemoration of Sylvia Holden Park be maintained by transfering it to the nearby community park known as the Lansdowne Community Park. This transfer will provide an appropriate and tangible alternative honouring Sylvia Holden in a nearby park that serves the same community. The transfer will also provide a clear distinction in names between the Lansdowne urban park and what is currently know as the Lansdowne community park.
Park Management and Resource Requirements
This report recommends that the Lansdowne urban park, the Horticulture Building and the Aberdeen Pavilion, be managed and programmed by the City’s Parks, Recreation and Cultural Services Department as an active municipal park with ample opportunity for access to passive and active recreation opportunities. City staff will work with community partners, the Glebe BIA, NCC, Parks Canada, volunteer agencies and clubs, and the private sector to develop a vibrant range of activities year-round.
Programming responsibilities will include development and direct delivery of unique City programs suited to the indoor and outdoor spaces that make up the urban park. The Special Events unit will also be responsible for scheduling and rental of park spaces using the Department’s Class Booking and Registration software system (CLASS) to administer the rental of various park spaces and to manage program registrations and admissions to City events. The availability of CLASS software at Lansdowne Park will also make it possible for clients to book other City facilities or register in programs offered at other City facilities through the service counter. Each of the rentable indoor and outdoor spaces at the site will be entered into the CLASS system to facilitate booking and management of the facilities. This will also enable clients to check on availability of various areas of the park for bookings through on-line viewing.
An important component of the scheduling responsibilities for the park will be the coordination of events with OSEG to ensure the smooth operation of the site and to avoid scheduling conflicts and over-programming of the site. In addition to direct City-delivered programming, the Special Events unit will employ an outreach approach to community partners, such as the Glebe BIA, who may wish to make use of park spaces and amenities to offer their own programming.
The City’s role will include program design, staffing, scheduling, promotion and evaluation. A marketing and sponsorship strategy for the urban park will be developed to guide program direction, reach interested client groups and find partners willing to leverage their resources to support park activities. The park will also offer attractive volunteering opportunities for residents who wish to share their time, skills and talents towards making the park’s programming objectives.
This Lansdowne operating unit will report to the Parks, Recreation and Cultural Services Special Events Division. The staff team serving Lansdowne will include:
· A Manager to oversee and provide management direction to the urban park operations. This will include the establishment of operating and financial procedures, the hiring of full and part-time staff, the development and execution of park marketing and advertising strategies, the creation of programming for the park and its interior spaces, development of park rental strategies, acting as the ongoing link between on-site City operations, OSEG and the Ottawa Farmers’ Market, urban park security, and participation in any Lansdowne authority created by Council to oversee overall site management.
· A Programming Officer responsible for the development and delivery of programs offered to the general public in the park and its interior spaces. This will include the hiring and supervision of part-time and seasonal staff responsible for direct program delivery, the development of seasonal public programming and special events, the development of promotional campaigns to attract the public to park programming, the development and application of program specific rules, procedures and standards, equipment rentals from the administration centre, point of sale initiatives, and staff training.
· A Park Rentals and Events Officer responsible for attracting special events and third party programming and events to the urban park and its interior venues. This will include the development of rental package opportunities to be marketed to the community, the establishment of rental rules and procedures, the oversight of the on-site service counter, overall urban park scheduling, and initial contact and discussions with clients interested in renting urban park spaces including the provision of tours of available amenities, negotiation of rental contracts for recommendation to the Supervisor, event logistics and support, and event-day client support. This position will also work directly with OSEG staff on coordinating events when stadium events will require the use of urban park facilities.
· A Customer Service Clerk responsible for the client service counter at the Park, direct service delivery on a daily basis, hiring of part-time staff for extended hours of operation, administration of point of sale and rentals functions, and cash management for the counter operations.
· Part-time staff responsible for the direct front line delivery of programs and services in each of the programming areas of the urban park. This will include staff to supervise certain park activities like public skating on the outdoor rink, instructors to teach certain skills in registered programs offered at the park, event support staff to assist clients with facility access, set up and take down of venues, and general site support staff to maintain a safe and welcoming environment, provide first aid, etc.
On-site staffing at Lansdowne will consist of park programming and a desk staff during operating hours and events. The remainder of the staff complement will be located offsite at a nearby City of Ottawa facility.
Urban Park Maintenance
It is important to note that the Lansdowne urban park is unique within the City’s park inventory. Public spaces are found throughout the park, not just in the public park areas but also in the mixed-use areas. The landscaping and tone of all public areas on the site is integrated with that of the urban park areas. As well, the park is unique in that it includes a broad array of components, such as the orchard, skate rink and beacon, which are very specialized.
A critical component of creating and maintaining a high quality park environment is ensuring that the venues and facilities, across the site, are at all times clean and in a condition that meets client expectations. To achieve this result, the City is working with OSEG to establish maintenance requirements to meet a high standard of daily maintenance consistently and in a timely fashion. This maintenance standard applies not only to the urban park areas, but also to all areas of public use on the Lansdowne site, including public spaces in the mixed use areas.
The City is working with OSEG to identify a comprehensive maintenance plan for the entire public and commercial component of the site that achieves efficiencies, minimizes duplication of effort, optimizes the use of contracted services, avoids boundary issues and minimizes on-site equipment and material storage requirements. As well, Public Works recommends that the specialized maintenance requirements unique to the specialized components in the park be contracted to outside parties on an as needed basis.
Governance
As directed by Council, a Governance report will be presented along with the Project Agreements to Committee and Council in the spring of 2012.
Projected Budget
Park and building maintenance and operational costs of approximately $2M have also been identified in support of site activities. This amount is consistent with the requirement approved by Council in their Term of Council priorities (Ref N°: ACS2011-COS-ODP-0011) on 13 July 2011, and in the long-range capital budget forecast included in the 2012 budget.
Where available, information from existing Lansdowne operations was used to establish core facility budgets. Compensation budgets are based on City of Ottawa full and part-time pay schedules and revenues are based on known market benchmarks for services and the potential for activity and facility sponsorships. Where events held in the urban park have attendance levels that trigger the need for enhanced transit service or shuttles, the promoters/sponsors of such events will be expected to include the costs to cover the additional transit and/or shuttle service and any bike parking corrals that may be established in their ticket prices. If it is a free event, the sponsor of the event or the City will be responsible for factoring these costs into the event business and budget plans. Patrons attending urban park events who wish to park on site will have to pre-purchase parking in the same manner that patrons attending stadium events will have to do.
Urban Park Operating Budget Requirement (excluding Horticulture Building):
Expenditures
Staffing $411,000
Material & Supplies $ 16,000
Program Development $ 70,000
Marketing & Promotion $ 40,000
City Event Support $125,000
Parking Reimbursements - Farmers’ Market $ 85,000
Total $747,000
Park Revenues
Aberdeen Rentals $225,000
Great Lawn & Plaza Rentals $ 80,000
Sponsorships & Advertising $ 10,000
Program Registrations $ 10,000
Special Event Admissions $ 7,000
Farmers’ Market Stall Rentals $125,000
Total $457,000
Total Net Programming $290,000
Maintenance & Utility Costs $1,652,000
Total Park Budget $1,942,000
Horticulture Building Budget Requirement:
Programming Expenditures
Staffing $84,000
Materials & Supplies $ 3,000
Program Development $ 3,000
Total $90,000
Horticulture Building Revenues
Facility Rentals $100,000
Program Registrations $ 35,000
Event Admissions $ 5,000
Sponsorships & Advertising $ 10,000
Total $150,000
Total Net Program Costs ( $60,000)
Commercial Lease Revenue ($210,000)
Horticulture Bldg. Total Revenue ($270,000)
Maintenance and Utilities $ 95,000
Total Net Revenue ($175,000)
Total Debt Servicing Cost on $2.5M $175,000
Net Horticulture Building Costs $0
One-time Programming Budget Requirements:
Furniture, Equipment, Office, IT $ 18,500
Event Assets – Staging, tables, chairs, barricades $163,000
Marketing Strategy $ 40,000
Official Opening Promotion: $ 25,000
Total $246,500
These one-time budget requirements are captured within the existing urban park capital budget envelope and do not represent a future budget request.
RURAL IMPLICATIONS
The programming plan maintains the presence of a Farmers’ Market at Lansdowne Park and the ability for local farmers to sell locally produced food.
CONSULTATIONS
Extensive consultation was undertaken by Phillips-Farevaag-Smallenberg (PFS) between November 2010 and June 2011 with a broad array of community stakeholders, including organizations such as the Glebe Community Association, the Old Ottawa South Community Association, Dragon Boat Organizers, Ottawa Folk Festival, Ottawa Jazz Festival, Children’s Festival, the Community Gardening Network Coordinator for Just Food and the Ottawa Marathon. This input was also collected via an online survey distributed to 115 organizations. The consolidated results of public input from all forums were considered and influenced the development of the proposed park programming proposal.
Parks, Recreation and Cultural Services participated in public meetings where the design concepts for the urban park were presented to the public, and engaged participants in discussions about program opportunities at the park. As well, the Department consulted with key future users of the park, including festival and special event organizers, to get an understanding of potential interest in the venue for community events and the amenities and services that will encourage such use. Discussions were also undertaken with the NCC and Parks Canada on potential use of the park for events they oversee, including Winterlude events and Canal special event and historical interpretation related initiatives.
Meetings continue with the Glebe BIA to outline programming proposals and engage in discussions exploring the opportunities for joint programming and coordination at Lansdowne and along Glebe BIA corridor.
The ward Councillor supports some of the report’s recommendations, but has provided the following comments and does not support:
· the costs and risks associated with moving the Horticulture Building as this will leave minimal funds for refurbishment and outfitting of the building, while imposing a burden to rent the space at full price at most times, reducing its availability for free and non-profit programming; and
· the formal transfer of the “Sylvia Holden Park” name, when the original park bearing that name could have been left intact.
There are no legal impediments to approving the recommendations in this Report.
There are no risk management implications associated with this report.
CITY STRATEGIC PLAN
Programming of the Lansdowne urban park supports the following key components of the City of Ottawa Strategic Plan:
Economic Prosperity
Objective: Promote Ottawa Globally - Revitalized Lansdowne provides an Ottawa venue for hosting major sporting and cultural events.
Transportation and Mobility
Objective: Promote alternative mobility choices - A key element of the Lansdowne revitalization is putting in place a comprehensive and aggressive Transportation Demand Management (TDM) program to encourage and promote use of sustainable transportation for day to day activities and for events.
Environmental Stewardship
Objective: Improve stormwater management - The Lansdowne revitalization will provide for significantly improving the manner in which stormwater flows into the City system, decreasing storm runoff, improving the quality of storm flow to the canal and providing for use of storm water for site irrigation.
Objective: Reduce environmental impact - The Lansdowne revitalization will make effective use of an existing urban site to accommodate a mix of uses, increase greenspace and revitalize a major city facility, thus reducing the environmental impacts of growth outside the urban area.
Healthy and Caring Community
Objective: Improve parks, recreation, arts and heritage - The revitalization program provides for re-establishing Lansdowne as a significant urban place that is grounded in the site's history. It provides for improving opportunities for sporting and cultural endeavours with a re-purposed stadium and a significant urban park to accommodate events and for day to day community use.
Governance, Planning and Decision Making
Objective: Make sustainable choices - The decision to revitalize Lansdowne in a way that recaptures its sense of place and positions it to once again become a dynamic urban place will improve economic health, cultural vitality and environmental responsibility.
Information Technology Services (ITS) has not yet been consulted in the development of this report and further investigation will be required to determine the technology implications on ITS infrastructure, resources, security and work plan. ITS will work with Parks, Recreation and Cultural Services to identify the technology requirements, establish priorities and develop an appropriate work plan.
The approved Council report, 09 June 2010 Lansdowne Partnership Plan (LPP), identified the City’s share of the Urban Park to be $35M which was to be debt financed with an annual estimated debt service cost of $2.342M. This report increases the debt by $2.5M and incurs debt service costs of $175K per year based on a 20-year term at 3.4%. The increased debt servicing cost will be offset by projected revenues from the operation of the Horticultural Building and will not impact the initial debt servicing estimates.
The 13 July 2011 Term of Council Priorities Report identified $2M in Strategic Initiatives Funding in 2014 for the Urban Park. The operating budget presented in this report is $1.94M, within the estimate set by Council. The $246K of one-time expenditures identified in the report will be included in the 2014 Draft Operating Estimates.
The Lansdowne urban park as been designed in consultation with an accessibility consultant to ensure the project meets the goals set out in the November 2010 report to Council. The project team is advancing implementation of an accessibility strategy developed by Betty Dion Enterprises Ltd. (BDEL).
The approved strategy identifies elements that are important to achieving universal accessibility standards in both site design and buildings. The strategy includes a compliance review process for the detailed design development and the construction phase as well as having an accessibility consultant working with the design teams incorporating accessibility features into the detailed design work that has occurred. This project is designed to comply with the Ontario Building Code and in accordance with the City’s Accessibility Guidelines for Built Environment.
Examples of specific accessibility features planned for this facility include, but are not limited to:
· Barrier-free path of travel to entrances of building and within the urban park;
· Automatic doors;
· Signage available in symbol form and way-finding signage that is accessible;
· Wide and easy to approach washroom doors;
· Barrier-free sink at accessible heights with low mounted mirrors;
· Accessible toilet heights throughout the facility;
· Accessible interior building environment features;
· Elevator dimension allow turning radius for mobility device and buttons and emergency controls are mounted at accessible height;
· Ramps and pathways built to accessible standards; and,
· Accessible parking for this facility will be in accordance with City of Ottawa By-law.
BDEL continues to be engaged with on-going review of progress drawings for the stadium, parking garage and urban park ensuring they meet accessibility targets identified.
Document 1: Lansdowne Site Plan
Subject to Council approval, staff will implement the recommendations as outlined in the report.