REPORT TO THE CHIEF ADMINISTRATIVE OFFICER FROM THE PARKS, RECREATION, AND CULTURAL SERVICES DEPARTMENT

Transcription

1 January 27, 2016 REPORT TO THE CHIEF ADMINISTRATIVE OFFICER FROM THE PARKS, RECREATION, AND CULTURAL SERVICES DEPARTMENT ON WESTSYDE POOL AND COMMUNITY CENTRE ROOF REPAIR OPTIONS UPDATE PURPOSE To provide Council with the options from the City's prime consultant, Read Jones Christoffersen Engineers Ltd. (RJC), for the Westsyde Pool and Community Centre (WPCC) repair project and to seek direction to undertake a Recreation Facility and Services Review and Feasibility Study for Westsyde, North Kamloops, and Brocklehurst. SUMMARY In January 2015, there was an interior roof leak at WPCC that was caused by excessive amounts of moisture in the building, which resulted in the partial collapse of a section of the interior roof. The pool operation was temporarily closed, Council and the community were alerted, and a repair plan was developed. Under the guidance of RDH Building Engineering Ltd. (RDH), a company specializing in building envelope restoration, a repair plan was developed and implemented. The temporary fix was completed at a cost of $30,000, and the pool reopened in March 2015 and continued operating until its normal shutdown period on June 1, The pool normally reopens in September each year, but it has remained closed during the wait for the permanent roof repair. The WPCC fitness facility has remained open on a limited schedule. As part of RDH's investigation, it was discovered that a failure of the original vapour barrier system had caused excessive moisture to erode the roof support beams and ceiling materials, which resulted in unsafe conditions. Even though temporary support beams were installed in 2015, a permanent fix is necessary for the pool portion to be safely operated over the long term, as the existing pool roof cannot safely support excessive wind or snow loads. In September 2015, Administration updated Council on the next steps toward a permanent repair solution. Council authorized transferring existing capital funds from Capital Project No Canada Games Aquatic Centre Building Envelope Repair ($2,867,360) to the WPCC Roof Repair Project. At that time, Council directed Administration to apply for the Canada 150 Federal Infrastructure Grant Program for the maximum amount of $500,000. The application was unsuccessful. Administration will review the status of the Canada Games Aquatic Centre Building Envelope Repair that is currently scheduled for 2017, and Administration will bring forward recommendations to the 2017 Budget discussions once the WPCC Roof Repair Project has been completed. S:\DCS\Jobs (c3)\236529_wpcc Roof Repair Options_REP\WPCC Roof Repair Options_REP.docx 27

2 WESTSYDE POOL AND COMMUNITY CENTRE January 27, 2016 ROOF REPAIR OPTIONS Page 2 Subsequently, RJC was engaged to prepare a detailed feasibility study and options review for Council's consideration. The options presented include a variety of scopes of work, depending on the total facility use and programming desired. All options include hazardous materials abatement, soft design costs, permit fees, and design contingencies. Option Description Cost Option 1A Basic Repair $3,080,000 Option 1B Outdoor Pool $4,200,000 Option 2 Modernization $4,930,000 Option 3 Toward Net Zero $12,974,000 Option 4 As the construction repair costs significantly exceed the original estimate of $2.1 million, Administration suggests a fourth option be considered. In light of a recent ice rink closure and other recreation building maintenance needs, and to further support Council's desire to provide efficient and cost-effective services, Administration suggests undertaking a Recreation Facility and Services Review and Feasibility Study for Westsyde, North Kamloops, and Brocklehurst prior to investing additional capital in these aging facilities. In 2005, the Kamloops Joint Aquatic Facility and Services Review was completed. It examined three indoor pools (YMCA-YWCA, Canada Games Aquatic Centre, and Westsyde) and two outdoor pools (Brocklehurst and McDonald Park). This review recommended that a phased approach to consolidating and repurposing existing aquatic facilities and investing in new pools on the North Shore and downtown should be undertaken, which would result in a new pool at McArthur Island and downtown. In keeping with Council's strategic goals of good governance and fiscal responsibility, an updated Recreation Facility and Services Review and Feasibility Study would provide an opportunity to maximize the use of recreation facilities as core community assets in the Brocklehurst, North Kamloops, and Westsyde neighbourhoods. Kamloops is served by three indoor pools (YMCA-YWCA, Westsyde, and Canada Games Aquatic Centre) and two seasonal outdoor aquatics facilities (Brocklehurst Recreation Centre and McDonald Park Pool). For comparative purposes, in 2014, the combined annual subsidy investment to operate the Westsyde, Brocklehurst, and McDonald Park pools was $714,000 and the Tournament Capital Centre/Canada Games Pool annual subsidy investment was $726,000. These facilities are aging and reflect the design and building practices of earlier years. Subsequently, they are less efficient to operate and less effective in their ability to respond to the public's recreation needs and interests. A Recreation Facility and Services Review and Feasibility Study would also provide Council with the opportunity to review emerging recreational concerns such as: The loss of the Ice Box arena; The growth of pickleball and demand for services from active agers; A conversation with the community on recreation facility use and needs; A summary of results of any previous studies and research completed; An overview of existing facilities and operating costs; S:\DCS\Jobs (c3)\236529_wpcc Roof Repair Options_REP\WPCC Roof Repair Options_REP.docx 28

3 WESTSYDE POOL AND COMMUNITY CENTRE January 27, 2016 ROOF REPAIR OPTIONS Page 3 A review of future trends and recreation needs that are not currently served; A review of feasibility and cost options, which may include alternate community use of existing facilities, including: - Converting WPCC to a community centre and multi-purpose gymnasium with programming that is targeted to active agers, such as pickleball; - Adding an additional ice rink at Brocklehurst Recreation Centre; - Converting the outdoor pool at McDonald Park to a water spray park; and An opportunity to explore the feasibility and cost of constructing a leisure pool aquatic facility at McArthur Island Sport and Event Centre. RECOMMENDATION: That Council either: a) Authorize staff to pursue Option 4 to conduct a Recreation Facility and Services and Review Feasibility Study for Westsyde, North Kamloops, and Brocklehurst and authorize Administration to: OR i) undertake a Recreation Facility and Services Review and Feasibility Study for Westsyde, North Kamloops, and Brocklehurst at a cost of $100,000, with funding provided from the Gaming Reserve Fund; ii) provide a report to Council with results of the feasibility concept plan and recommendations on next steps; and ii) update the Financial Plan to reflect this cost; b) Authorize Administration to: i) undertake Option 2 - Modernization for Westsyde Pool and Community Centre (WPCC) at a total cost of $4,930,000 with funding from the Community Works Reserve Fund; ii) increase Capital Project No WPCC Pool Repair by $2,062,640, with funding from the Community Works Reserve Fund; and iii) include the WPCC Project in the Financial Plan. COUNCIL POLICY The Council Strategic Plan identifies good governance, livability, and fiscal responsibility as key objectives, which support the study of recreation facility and programming opportunities in Westsyde, Brocklehurst, and North Kamloops from a long-term perspective. S:\DCS\Jobs (c3)\236529_wpcc Roof Repair Options_REP\WPCC Roof Repair Options_REP.docx 29

4 WESTSYDE POOL AND COMMUNITY CENTRE January 27, 2016 ROOF REPAIR OPTIONS Page 4 To provide historical context, the City's most recent recreation master plan, the Kamloops Joint Aquatic Facility and Services Review, was undertaken in Prior to that, the 2003 Parks and Recreation Master Plan was implemented and then updated as the "Oasis of Activity: City of Kamloops Parks Master Plan" in Recreation and health and wellness are also key components of the Sustainable Kamloops Plan (2010). DISCUSSION To provide Council with a full range of potential costs and improvement benefits, RJC was directed to consider several unique options ranging from basic, targeted repairs to just the roof structure to a complete facility refresh and amenity enhancement. Each of the four options provides Council with a unique and realistic approach to repairing the pool roof over the short- and long-term. A full, detailed breakdown is provided in Attachment "A". Attachment "B" contains illustrations and floor plans for each option. Option 1A - Basic Repair $3,080,000 This option is $212,640 higher than current funding levels and may achieve the original time frame for completion of September 1, It proposes replacing the roof structure completely and providing an improvement in insulation R-value in the roof area only. The mechanical and HVAC systems will remain the same, but the dehumidification system will be improved. RJC states the existing dehumidification system is under capacity for a building of this size, and it is the primary reason for the moisture-related repair issues at present. It is RJC's opinion that this option does not adequately address the long-term issue of the existing inefficient HVAC and mechanical systems or the eventual need to replace this infrastructure to ensure the longevity and integrity of the building envelope (the existing air handling system has three to five years of useful life remaining). The estimated construction time is six months, with an additional two to three months for detailed design and tendering, for a total of eight to nine months. Option 1B - Outdoor Pool $4,200,000 This option is $1,332,640 higher than current funding levels and may achieve the original time frame for completion of September 1, It proposes eliminating the existing roof structure completely and building three new walls to separate the rest of the facility from the outdoor pool deck. The mechanical and HVAC systems would require reconfiguration, but the dehumidification system is less robust due to less interior space. This option presents some interesting opportunities for year-round use and programming; however, the winter months will significantly impact energy costs due to outside temperatures and heat loss from the pool. As well, the pool deck will require heat tracing throughout to make it comfortable and safe for public use in cold months. This option eliminates the need for a new HVAC and dehumidification system; however, the long-term utility costs are substantial, and the public acceptance of an outdoor pool in the winter months is a concern. The estimated construction time is six months, with an additional two to three months for detailed design and tendering, for a total of eight to nine months. S:\DCS\Jobs (c3)\236529_wpcc Roof Repair Options_REP\WPCC Roof Repair Options_REP.docx 30

5 WESTSYDE POOL AND COMMUNITY CENTRE January 27, 2016 ROOF REPAIR OPTIONS Page 5 Option 2 - Modernization $4,930,000 This option is $2,062,640 higher than current funding levels and requires an additional construction time frame of three months (December 1, 2016, estimated completion). This option proposes a complete replacement of the HVAC, mechanical, and dehumidification systems, as well as improvements to the R-value of the building envelope's insulation. The existing air handling system has three to five years of useful life remaining, so RJC recommends full replacement. An exterior finish and additional window glazing will create a modern, attractive look and provide natural light and improved energy efficiency throughout. This option will provide fully balanced mechanical and HVAC systems that will minimize future energy costs and humidity impacts on the building envelope. Also included in this option is the ability to pre-wire for the installation of solar panels for future use and to plan for the roof to be strong enough to hold the additional weight of those panels. The estimated construction time is nine months, with an additional two to three months for detailed design and tendering, for a total of 11 to 12 months. Option 3 - Toward Net Zero $12,974,000 This option is $10,100,400 higher than current funding levels and will require an additional construction time frame of six to nine months (June 1, 2017, estimated completion). This option provides the most complete refresh of WPCC. It includes geothermal heating and cooling, envelope upgrades, and a solar array help the building achieve net zero emissions. The interior amenity space will be significantly expanded, with a second floor area that would allow expansion of the fitness facility and programming. Space for an additional leisure pool and hot tub is included in this design option. This option also includes the demand for 55 additional parking spaces due to expected higher use. Parking is a limiting factor since the City does not have any other land parcels in the immediate area that could be used for surface parking. The parking capacity may not be an issue in summer months or during school holidays. The estimated construction time is 12 to14 months, with an additional three to four months for detailed design and tendering, for a total of 15 to17 months. Option 4 - Conduct a Recreation Facility and Services Review and Feasibility Study As the construction repair costs significantly exceed the original estimate of $2.1 million, and in support of Council's desire to provide recreation services as efficient and cost-effective as possible, Administration proposes a fourth option, which is to conduct a Recreation Facility and Services Review and Feasibility Study for Westsyde, Brocklehurst, and North Kamloops prior to investing additional capital in these aging facilities. For Council information, since McDonald Park Pool closed for the season in September 2015, it has experienced a failure with its hot water boiler ($65,000 replacement cost) and main pool drain ($150,000 cost estimate), which are both required for normal pool operations prior to its reopening in June These costs are not in the 2016 Financial Plan. Administration will be bringing this information forward to Council for direction once the final cost estimate is completed for the main pool drain issue. McDonald Park Pool was constructed in S:\DCS\Jobs (c3)\236529_wpcc Roof Repair Options_REP\WPCC Roof Repair Options_REP.docx 31

6 WESTSYDE POOL AND COMMUNITY CENTRE January 27, 2016 ROOF REPAIR OPTIONS Page 6 In 2005, a collaborative research study, the Kamloops Joint Aquatic Facility and Services Review, was conducted by the City and the Kamloops YMCA-YWCA. The study examined three indoor pools (the YMCA-YWCA downtown pool, the Canada Games Aquatic Centre, and Westsyde Pool) and two outdoor pools (Brocklehurst and McDonald Park). The intent of the report was to "review and analyze Kamloops' current aquatic service and facilities and make recommendations to ensure the communities continued support of the service" and "to determine the future needs and preferences and recommend the type of services, facilities, or renovations to facilities that are required to meet those needs in a cost-effective manner." The collaborative review discussed the need for improvements to existing pools, possible new pools, and a number of phasing options in order to ensure that the City has an appropriate amount of water to meet community needs beyond In summary, the report suggested a reconfiguration involving the following phases: Phase One (2012) - The construction of a new indoor/outdoor pool multi-purpose community leisure pool on the North Shore and closure of the YMCA-YWCA pool (Administration does not support the recommendations regarding the YMCA-YWCA pool). No significant improvements should be made to the two outdoor pools. Phase Two (2017) - The closure of McDonald Park and Brocklehurst outdoor pools. Phase Three (2022) - A major renovation to the Canada Games Aquatic Centre to improve leisure amenities to allow more visits and the construction of a new urban pool in the downtown area. With reference to Westsyde Pool, the collaborative review states: A decision could be made that because of its very low attendance, and the fact it has reached middle age, that no improvements should be undertaken, and that it should be closed when the proposed North Shore facility is built, and converted to some other type of multi-purpose recreation facility. A decision could be made for a small number of leisure facilities such as a hot tub, a larger fitness area, a warm teaching pool, and several interactive features that appeal to young children. A renovation of this type which renovation of this type, which would include improvements to mechanical systems would extend the life of the facility and in all likelihood the number of visitors. It is in the consultant's opinion, however, that attendance figures would not increase dramatically. Based on these conclusions, Administration suggests that Council consider an additional option to conduct a Recreation Facility and Services Review and Feasibility Study for Westsyde, North Kamloops, and Brocklehurst, which would provide the opportunity to maximize the use of recreation facilities as core community assets over the longer term. SUSTAINABILITY IMPLICATIONS Options 2 and 3 provide the best overall building energy efficiency improvements for WPCC, as the mechanical and air handling systems would be modernized to today's standards. Also, both options include the opportunity to install solar panels on the new roof structure. S:\DCS\Jobs (c3)\236529_wpcc Roof Repair Options_REP\WPCC Roof Repair Options_REP.docx 32

7 WESTSYDE POOL AND COMMUNITY CENTRE January 27, 2016 ROOF REPAIR OPTIONS Page 7 FINANCIAL IMPLICATIONS All estimated costs of Options 1A, 1B, 2, and 3 are based on Class "C" probability levels and include all contingencies for soft and construction costs (+10%). Administration does not recommend the lowest price Option1A - Basic Repair because, in RJC's opinion, the existing air handling and mechanical system will eventually require complete replacement due to its age and lack of capacity and may be more expensive to update and repair in future years. The WPCC, when in full operation, has an annual operating budget of $547,000. Under normal activity levels, the admissions and programming revenue is $130,000, with a net cost to operate of $417,000. It is anticipated the facility will be closed for normal operations until September 2016, which has reduced the net tax subsidy required by $70,000 and is reflected in the 2016 Financial Plan. Depending on which option Council chooses, any further construction closure times beyond September 1, 2016, will result in net operational cost reductions of $35,000 per month. For example, based on Option 2 - Modernization, the estimated completion time is December 2016, which will reduce the net operating cost by an additional $105,000 ($175,000 total reduction in net tax subsidy for 2016). The Community Works Reserve Fund currently has an uncommitted balance of $2.7 million. If Council chooses Option 2 - Modernization, the uncommitted balance will be $637,360. For Council information, the Canada Games Aquatic Centre Building Envelope Repair project is currently in the 2017 Financial Plan, with funding provided by the Community Works Fund ($3 million). PERSONNEL IMPLICATIONS Although the gym facility is currently open on a limited schedule, depending on which repair option Council chooses, the gym will need to be closed for the duration of the construction period for safety reasons. Administration reviewed options of transferring fitness equipment and staff from WPCC to the nearby Westsyde Community Centre gymnasium, but the existing programming demand for that gym space and the cost of setting up a registration desk do not make that plan feasible. If the Recreation Facility and Services Review and Feasibility Study is undertaken, the gymnasium facility can remain open according to its current schedule. IMPLEMENTATION PLAN If Option 4, Recreation Facility and Services Review and Feasibility Study is undertaken, to provide certainty for all stakeholders, the goal is to complete the scope of work as quickly as possible to provide the community and Council with an opportunity to review the results within 90 days. S:\DCS\Jobs (c3)\236529_wpcc Roof Repair Options_REP\WPCC Roof Repair Options_REP.docx 33

8 WESTSYDE POOL AND COMMUNITY CENTRE January 27, 2016 ROOF REPAIR OPTIONS Page 8 COMMUNICATIONS PLAN The Parks, Recreation, and Cultural Services Department has been in regular contact with the Westsyde Community Development Society on the project status. Arrangements will be made to conduct a public open house to announce Council's course of action. There will be a communications fund allowance of $10,000 included in the construction budget for each of the options provided. B. J. McCorkell Parks, Recreation, and Cultural Services Director Approved for Council Consideration: Concurrence: K. Humphrey, CPA, CA, Finance Director J. Fretz, P.Eng., Public Works and Utilities Director Author: J. T. Putnam, B.Comm., Parks and Civic Facilities Manager Reviewed by: B. Berger, Recreation, Social Development, and Culture Manager JTP/dla/lm/kjm Attachments S:\DCS\Jobs (c3)\236529_wpcc Roof Repair Options_REP\WPCC Roof Repair Options_REP.docx 34

9 Westsyde Pool - Total Cost for Options Attachment "A" 1a - Targeted Repair 1b - Outdoor Pool Hard Costs (From LEC Reports) Architectural Building Envelope $ 369, , Projections $ 16, Finishes / Interior $ 60, , Structural $ 316, Mechanical $ 314, , Electrical $ 162, , Sitework $ 100, , Ancilliary Work $ 262, , Overhead $ 240, , Profit $ 93, , Design Contingency $ 315, , Sub-Total Hard Costs $ 2,249, ,760, Amenities Additional Cost Allowance Allowance for Leisure Pool + Hot Tub or Slide Replacement $ 150, , Allowance for Adding Parking $ - 300, Total with Allowances $ 2,399, ,320, Option 2 - Envelope and HVAC Modernization Option 3 - toward net zero $ $ 674, $ 1,233, $ $ 31, $ 93, $ $ 156, $ 1,349, $ $ 316, $ 1,098, $ $ 528, $ 1,846, $ $ 305, $ 724, $ $ 100, $ 285, $ $ 291, $ 556, $ $ 360, $ 1,078, $ $ 138, $ 413, $ $ 447, $ 1,346, Leisure Pool and Hot Tub Included in $ $ 3,350, $ 10,025, Option 3 Scope Pricing Allowance for parking assumes: $ $ 260, $ - No parking requirements for Option 1a $ $ 300, $ 450, parking stalls for Options 1b and 2 $ $ 3,910, $ 10,475, parking stalls for Option 3. Soft Costs Owner Side City of Kamloops $ 100, $ 100, $ 100, $ 100, Permitting 0.500% $ 11, $ 13, $ 16, $ 50, Testing $ 10, $ 25, $ 15, $ 25, Geotechnical $ 25, $ 30, $ 25, $ 30, Subtotal, Owner $ 146, $ 168, $ 156, $ 205, Existing Consultant Side ACEC BC Guideline Building Factor Percentage Extension Extension Extension Extension Prime Consultant 1.4% % $ 53, $ 65, $ 79, $ 238, Envelope 2.8% % $ 17, $ 14, $ 32, $ 58, Architect 4.0% % $ 30, $ 29, $ 58, $ 182, Structural 6.0% % $ 32, $ - $ 32, $ 112, Mechanical 7.0% % $ 37, $ 50, $ 62, $ 219, Electrical 7.5% % $ 20, $ 22, $ 38, $ 92, Fees on Allowances 8.0% $ 66, $ 150, $ 111, $ 211, Subtotal Consultants $ 257, $ 332, $ 416, $ 1,114, Consulting Fee % (Total) 11.47% 12.04% 12.43% 11.12% Sub-totals $ 2,803, $ 3,821, $ 4,483, $ 11,794, Construction Contingency (10%) $ 280, $ 382, $ 448, $ 1,179, Project Totals $ 3,084,027 $ 4,203,363 $ 4,931,510 $ 12,974,032 35

10 Attachment "B" Westsyde Pool 2015 Feasibility Study Options Review Monday, January 11, 2016 Read Jones Christoffersen Ltd. Creative Thinking Practical Results 36

11 37

12 ORIGINAL BUILDING FOOTPRINT 38

13 2015 Envelope Study 39

14 2015 Feasibility Study 40

15 Site and Amenities The options presented include a variety of scopes of work and allowances depending on the total program considered. Amenity work typically includes replacement of the waterslide. Some options include a leisure pool and new hot tub. Options 1b, 2 and 3 include allowances for adding parking to meet current Development Bylaw requirements. Each option includes hazardous materials abatement. Each option includes some landscaping, scope varies. 41

16 Option 1a: basic repair 42

17 Option 1a: basic repair Approximately 6 months Total Hard plus Soft Cost Est. $3,080,000 43

18 Option 1b: outdoor pool 44

19 Option 1b: outdoor pool Approximately 6 months Total Hard plus Soft Cost Est. $4,200,000 45

20 Option 2: modernization 46

21 Option 2: modernization Approximately 9 months Total Hard plus Soft Cost Est. $4,930,000 47

22 Option 3: toward net zero 48

23 Option 3: toward net zero Approximately months Total Hard plus Soft Cost Est. $12,974,000 49

24 Energy / GHG Emissions 50

25 Building Life Cycle 51

26 Scopes Not Addressed 1a basic repair Pool Tank Pool Apron Pool Equipment Amenity Structure Foundations Amenity Building Joists Amenity Building Envelope Amenity Building Interiors Air Handling Equipment 1b - Outdoor Pool Pool Tank Pool Apron Pool Equipment Amenity Structure Foundation Amenity Building Interiors 2 - modernization Pool Tank Pool Apron Pool Equipment Amenity Structure Foundations Amenity Building Joists Amenity Building Interiors 3 toward net zero Pool Tank Pool Apron Pool Equipment Amenity Structure (partial) Foundation 52

27 Sustainability 53

28 Summary Our study presents four options of unequal performance for Westsyde Pool. Option 1a is intended to meet the identified budget by addressing the structural deterioration and envelope of the pool building (Natatorium). Option 1b is a second approach to a full building upgrade but changes the functionality of the pool by removing the enclosure. Option 2 address the building envelope, mechanical and electrical of the full building. Option 3 provides the most complete refresh of Westsyde Pool, although some systems remain untouched. It includes geothermal, envelope upgrades and solar PV to help the building toward net zero energy targets 54