Corporate NO: R243 Report COUNCIL DATE: November 20, 2006 REGULAR COUNCIL TO: Mayor & Council DATE: November 15, 2006 FROM: Acting General Manager, Planning and Development FILE: 0850-20 (CF) SUBJECT: Concept Plan for the Redevelopment of the Cloverdale Fairgrounds - Results of the October 19, 2006 Public Open House and Proposed Preferred Option RECOMMENDATION INTENT It is recommended that Council: 1. Receive this report as information; and 2. Endorse the attached Preferred Option (Refined Option B) attached as Appendix I and authorize staff to present this Preferred Option at a Public Open House in January 2007, in order to receive comments from the public and stakeholders, prior to the preparation of the Final Concept Plan for Council's consideration. The purpose of this report is: To advise Council of the input received from the public at the public open house, held on October 19, 2006, on the two draft Concept Plan options for the Cloverdale Fairgrounds site; To apprise Council of the process and timeline for the preparation of the Final Concept Plan and report; and To present one consolidated option as the draft Preferred Concept Plan and seek Council's authorization to present it at a public open house in January 2007, for comments from the public, prior to preparing the Final Concept Plan and report for Council's consideration. BACKGROUND On October 16, 2006, Council considered Corporate Report No. C019 on two draft Concept Plan Options and authorized staff to present the Concept Plan Options at a Public Open House in order to receive comments from the public and stakeholders on the options, prior to the preparation of a Final Concept Plan for Council's consideration.
- 2 - DISCUSSION Public Open House The public open house to display the two draft Concept Plan Options was held on October 19, 2006 at 5:30 p.m. at Shannon Hall, on the Cloverdale Fairgrounds site. The two options, shown as Option A and Option B, are attached as Appendix II, with the Project Objectives, outlined in Appendix III to this report. The open house was advertised in the local newspapers and letters of invitation were mailed out to all owners of the properties within 100 metres of the site and to all lessees, recreational users, community groups and other key stakeholders. A total of 179 people came to the public open house. To date, the Planning and Development Department has received comments from 76 people, including individuals and representatives of organizations, which include the Surrey BC Standard Bred Association, the Valley Curling Club, Murray Canine Centre Society, the BC Trucking Association's Truxpo Committee, the BC Coalition of Motorcyclists, the Cloverdale Rodeo & Exhibition Association, the Association of Sustainable Communities and the Whalley Business Improvement Association. A copy of the Comment Sheet provided to the public for comments is attached as Appendix IV of this report. The complete summary of all comments is posted on the City's website under "Community Development", "City and Neighbourhood Plans and Projects", "Plans in Progress" and then under "Cloverdale Fairgrounds". Comments The comments received in response to the Comment Sheet, distributed to the public at the public open house and made available through the City's website, are summarized below: Which of the two options do you generally prefer Option A or Option B? Briefly, please explain why you prefer this option. The Comment Sheet noted that the Final Concept Plan might contain elements from each of these draft options. It then asked people to describe what they liked and what they did not like about each option. Preference for Option A Twelve responses (16% of 76 responses) indicated the preference for Option A. This option shows the Trade & Exhibition Centre, potential 5,500-seat Arena and Multi-purpose Community Centre, including a youth park and space for seniors facility are to be located to the north of 62 Avenue. The Hotel is located to the northeast of Highway 15 and 60 Avenue, with a heritage plaza at the corner. The 1881 City Hall building, currently located in the existing Seniors Centre, will be exposed as a feature building in the heritage plaza and will be used as a tourism centre. Some of the main reasons for the preference for this option include: The Trade & Exhibition Centre is close to the arena. The hotel is close to downtown Cloverdale and casino.
- 3 - The facilities seem better laid out. Parking is off 64 Avenue for direct access. Option A - Likes Six respondents like the Phase 1 Site Plan. Individual comments included preference for keeping the existing buildings, keeping the amphitheatre as a meeting place for celebrations and retaining the Stetson Bowl. Four respondents like the location of the hotel, close to the casino. Three respondents like the location of Trade & Exhibition Centre. Others (less than three each) indicated retention of green spaces and existing facilities, new arena, location of the community centre, tourist kiosk in the 1881 city hall building, location of the parking area off 64 Avenue, etc. Forty-seven respondents did not indicate any features of Option A that they like. Option A Dislikes Seven respondents do not like the location of the hotel at 176 Street and 60 Avenue, citing reasons such as: people living in the community do not use a hotel yet it is located in an easy-to-reach spot; the hotel is too close to the residential area; and the corner of 176 Street and 60 Avenue is too busy even without a hotel there. Ten respondents do not like the amount of surface parking, with comments such as massive parking area, loss of forested area and build a parkade. Eight respondents do not like the location of the community centre at 62 Avenue with the seniors facility within the building and also not having a separate building for the seniors. The comments include: too far from the areas where seniors live; the loss of a stand-alone seniors centre; having to be relocated again from the "old' museum building to which they were relocated from the original site on Highway 10; and now proposing to replace the stand-alone seniors centre with a "drop-in" centre as part of the community centre. Almost equal number of respondents dislike the hotel being located too far from the Trade & Exhibition Centre (five responses) and location of the community centre (four responses) being too far from downtown Cloverdale. Less than four respondents each indicated dislikes such as: the new arena should be twinned with the existing arena; the loss of amphitheatre in the full build-out plan; no mention of additional ice sheets; too much parking oriented towards the street creating an uninviting streetscape; the loss of Stetson Bowl in the full buildout plan; no need to have the Trade & Exhibition Centre; and no need to have a hotel.
- 4 - Forty-two respondents, however, did not indicate whether or not they dislike any specific features of the Option A plan. Preference for Option B Forty-three responses (57% of 76 responses) indicated preference for Option B. This option shows the Trade & Exhibition Centre, potential 5500-seat Arena and Hotel located to the north of 62 Avenue. The Multi-purpose Community Centre, which would include a youth park and space for seniors facility, is shown closer to the Cloverdale Town Centre, at the northeast corner of Highway 15 and 60 Avenue, with a heritage plaza at the corner. The 1881 city hall building would be located in the heritage plaza and integrated with the community centre. Some of the main reasons stated for the preference for this option include: The Trade & Exhibition Centre and Arena are located adjacent to one another. The Community Centre is close to the community and downtown Cloverdale. Seniors prefer having it close to 60 Avenue. It provides convenient access to buses and shopping. Parking is better placed for access to buildings and is not as spread out (as in Option A). The hotel is close to the Trade & Exhibition Centre and Arena. This keeps the area near 176 Street and 60 Avenue more community oriented. This option makes the best use of the area, at least during Phase 1 and the plan is more beneficial in the long run. It is more pedestrian friendly. Option B- Likes Ten respondents like the location of the hotel. Individual comments cited reasons such as because it will be closer to the Trade & Exhibition Centre; it will be away from the corner of 176 Street and 60 Avenue, which should be more communityoriented; and it is in a central location between the casino, Trade & Exhibition Centre and the commercial area at 64 Avenue and 176 Street. Nine respondents like the location of the community centre. The comments indicate this is because it is more central and close to the bus routes and residential area, and parking will be separated from the casino parking. Eight respondents like the location of the parking area because it is more centralized, more internal for better street appearance and broken up into smaller parking areas. Five respondents like that the Stetson Bowl will be retained under this option.
- 5 - Comments from less than four respondents each include liking the pedestrian pathways; proximity of the Trade & Exhibition Centre, new arena and hotel to each other; location of the seniors facility; and incorporation of the old city hall building. Forty respondents did not indicate any features that they like. Option B Dislikes Five respondents do not like losing the amphitheatre as green space, open space and public amenity, and replacing the amphitheatre with parking. Five respondents do not like the location of the hotel near 176 Street commenting that it should be closer to the Trade & Exhibition Centre and other buildings. Other comments (from three and less respondents) include dislike for features such as the amount of surface parking; hotel as a use on the site; storm water ponds within the racetrack area which will not have enough capacity to hold all water from the site; accessibility to the Trade and Exhibition Centre; location of the seniors centre inside the community centre building. Forty-eight respondents have not indicated whether or not they do not like any features of Option B. No Preference for Either Option There were six responses (8%) which did not indicate a preference for either option, citing reasons such as the need to keep the amphitheatre; building locations are irrelevant compared to their designs; and too much area is used for commercial and parking. Are there any other considerations and/or features that you feel should be incorporated into the design of the site? The Comment Sheet also invited the public to respond the above-noted question. The responses to this question included: An indoor swimming pool (nine responses). Structured parking (seven). Keep or enlarge the current ice and curling rinks (six). A separate building for the seniors centre (six). More green space (six). Keep the amphitheatre (six). Improve tennis facility (six). Internal road access for loading/unloading trucks and trailers (five). RV Parking (four). Areas for outdoor celebrations (four). Sports facility (four). There were a number of comments from three or less people each, such as the suggestion to incorporate a streetcar/tram service; need for traffic control;
- 6 - suggestion to incorporate heritage features into building designs; need to build the community centre sooner; suggestion to incorporate a shuttle from parking areas. Twenty-seven respondents did not answer this question. Additional Comments The Comment Sheet provided space for Additional Comments. The responses included the following: The Trade and Exhibition Centre should be located in the City Centre. The development (of the Cloverdale Fairgrounds site) is welcome. The seniors centre should be built off-site such as to the southeast of 176 Street and 60 Avenue or in the old post office building in the downtown Cloverdale. Put parking under the Trade and Exhibition Centre. Concerns were expressed about the commercial on site. Do not like much development. Like the small town feel of Cloverdale. Comments from the Heritage Advisory Commission On October 25, 2006 staff presented the two draft Concept Plans to the Heritage Advisory Commission ("HAC"). After the presentation, the HAC made the following recommendation to Council. "That in as much as the south west corner of the Cloverdale Fairgrounds is designated heritage and has existing heritage value, the HAC recommends that Council give adequate consideration to including sufficient land with the Cloverdale Fairground Concept Plan where existing heritage structures could be retained and in the future to which heritage structures could be moved for future public enjoyment". Overview of the Comments The October 19, 2006, Public Open House was advertised in the local newspapers and all of the owners within 100 metres of the site, recreation users and stakeholders were sent invitation letters. The display boards and comment sheets were also posted on the City's website. 179 people attended the open house. The response rate to the invitation for comments on the two draft options is 42% (76 out of 179 people who attended). A majority of the people who provided comments indicated a preference for Option B. This option shows the location of the Multi-purpose Community Centre, including the youth and seniors facilities, at the corner of 176 Street and 60 Avenue (near the location of the existing seniors centre) and the hotel, new potential 5500-seat arena and Trade & Exhibition Centre located to the north of 62 Avenue. The concern about the seniors centre being not a stand-alone facility, which was also indicated in response to the plans presented at the first open house in April, has been reiterated this time as well. However, the Project Steering Committee, composed of staff and representatives from the Lower Fraser Valley Exhibition Association and Fraser Downs Casino & Racetrack, notes that, as part of the community centre building, the seniors facility would benefit from the easy accessibility to other facilities within the
- 7 - building such as the gym, indoor walking track and meeting rooms, especially those seniors who are physically active and will utilize the variety of amenities in the community centre. The multi-purpose facility also allows opportunities for social interaction with other age groups. In consideration of those who like the comfort and feeling of security of a stand-alone facility, those needs could be addressed in the design of the community centre in consultation with the seniors representatives. Also, integrating different facilities into one building is desirable because it is cost effective to manage and provide customer service, its construction is cost efficient, it eliminates the duplication of amenities and services, and it provides a broader range of options and activities within one location for active senior and all community members. Concerning the comments of the HAC, it is noted that both of the draft concept plans provide for the retention and integration of the existing old municipal hall. The concept plans also allow for the possibility to accommodate other heritage buildings in the future that may be considered appropriate for relocation. Opportunities to relocate other suitable buildings to the site can be explored in consultation with the HAC and appropriate locations may be found, while ensuring that the buildings will be adaptable for appropriate uses that will be in keeping with the objectives of the final concept plan approved by Council. For example, a suitable heritage building could be adapted for use as a tourist information building on the site. Preferred Concept Plan Option The Project Steering Committee has considered the comments from the public open house and the two Draft Concept Plan Options, in light of the Project Objectives prepared at the outset of the plan preparation process. These objectives were presented to Council on October 16, 2006, in conjunction with Corporate Report No. C019, on the two draft options and are attached to this report as Appendix II. The Steering Committee has concluded that one consolidated option, based on a modified version of Option B should be prepared as a Preferred Concept Plan Option for consideration by Council. While both the Option A and Option B would meet a number of the Project objectives, Option B would better achieve the following objectives: Arranges uses to enhance and connect with the Cloverdale community. The development of the corner of 176 Street and 60 Avenue is critical to strengthen the linkage between the Fairgrounds and the Cloverdale community. Option B, which locates the Multi-purpose Community Centre at this corner, relates better to the established residential area in proximity of 60 Avenue. Incorporates flexible planning approach that will accommodate changes in the land use program. The construction of the hotel is not guaranteed, at least not in the initial phase of the redevelopment of the Fairgrounds, which would mean that the development and improvement of the southeast corner of the site could remain unrealized for many years. This corner of the site is located at the intersection of 176 Street and 60 Avenue, which is envisioned as the Northern Gateway to the Cloverdale Town Centre. Therefore, the development of the southeast corner of the Fairgrounds site is critical to anchoring the town centre and announcing the rejuvenation of the site. The
- 8 - development of this important corner should not be reliant on the hotel proceeding. The Multi-purpose Community Centre, on the other hand, will proceed in the first phase of the redevelopment. Therefore, as shown in Option B, the location of the community centre will allow for the improvement of this important corner in the initial phase of the redevelopment of the Fairgrounds site. Groups complimentary uses. The contiguous location of the potential 5,500 seat Arena with the Trade and Exhibition Centre allows for a direct connection between the two facilities and for the possibility of using the Arena for activities associated with the trade shows and exhibitions. Also, the location of the hotel would compliment these two facilities and provide services that may be needed by the users of these facilities. Minimizes conflicts between the uses. The location of the community centre further away from the exhibition/entertainment precinct would minimize potential for conflicts of vehicular traffic, shared parking, noise, servicing for the facilities and between users of the facilities that are more regional in nature vs. those facilities that are focussed more on serving the local population. Maximizes the retention of the existing facilities and amenities during the phased development. Option B allows for the retention of the Stetson Bowl over a longer term. It is possible to modify this option so as to retain and enhance the Millennium Amphitheatre, subject to the provision of adequate parking through structured parking or other parking solutions. Provides for ease of access and services to the uses. Option A consolidates access to the local and regional facilities in two primary nodes, which may result in some congestion if two or more activities are taking place simultaneously. Option B distributes the various facilities along a continuous greenway and circulation route to allow for less congested access to individual uses. Additionally, further developing the draft Option B as the Preferred Option is in keeping with the preference indicated by the majority of the people who provided comments after the public open house on October 19, 2006. The Phase 2 version of the proposed Preferred Concept Plan Option (Appendix I) shows the possibility of creating an enhanced multi-purpose outdoor space where the amphitheatre is currently located. The current facility has limited use due to the grading provided for the seating purposes. The multi-purpose outdoor space could be created by making the amphitheatre slightly smaller and re-grading the current space to allow for events such as midways, community fairs, etc. Public art, landscaping and other amenities could also be incorporated to convert this modified space into a green, festive and inviting place for public gathering most of the year. Removable bleachers/seating could be used to provide for its use as an outdoor theatre. Such a space would be in
- 9 - keeping with the wishes of some members of the local community and Council. In order to create such space, however, part of the surface parking will have to be relocated to underground or above ground structured parking depending on the soil and cost considerations. Outstanding Issues: The following issues would need to be addressed in conjunction with the preparation of the Final Concept Plan, which would be based on the attached Preferred Concept Plan: 1. Geotechnical issues re: the structured parking; 2. Stormwater drainage on the site; 3. Temporary relocation/continuity of the existing seniors centre to allow for the construction of the community centre; 4. Allowing for the possibility for accommodating heritage buildings on the site that may be considered candidates for relocation, provided however that appropriate sites for such buildings can be found on the site and the buildings can be adapted for viable uses in keeping with the objectives of the Cloverdale Fairgrounds Concept Plan; 5. The feasibility of relocating the existing eastwest right-of-way north of 60 Avenue from 176 Street to provide service to the Fraser Downs Casino and Racetrack and the associated cost implications; and 6. Provision of options to create a safe crossing at 176A Street for pedestrians and for future streetcar; 7. Improving the accessibility of the site by public transit, bicycles and on foot; and 8. Providing for the sustainable development of the site and facilities. Process and Timing for the Final Concept Plan After Council considers this Corporate Report and authorizes staff to proceed with the presentation of the Preferred Concept Plan to the public at a public open house next year, staff will work with the consultant to do additional work in preparation for the public open house. The additional work will include providing information on possible options to address the outstanding issues and on engineering services, accessibility and circulation, landscaping and building design recommendations, phasing concepts, etc. The open house will be held in early January next year. Following the Public Open House and receipt and review of the public comments on the Preferred Concept Plan, the plan will be refined and further detailed during January and early February to prepare the Final Concept Plan. It is expected that the Final Concept Plan and report will be completed for Council's consideration by late February next year. CONCLUSION
- 10 - Staff held a Public Open House on October 19, 2006 on two draft Concept Plan Options, Option A and Option B, for the redevelopment of the Cloverdale Fairgrounds to receive public feedback. This report summarizes the comments received from the public to date. On the basis of the comments from the majority of the public and review of the two options by the consultant and the Project Steering Committee a modified version of Option B has been prepared as the Preferred Concept Plan Option. It is recommended that Council receive this Corporate Report as information and authorize staff to present the attached Option (Appendix I) as the Preferred Concept Plan Option at a Public Open House in January 2007 in order to receive comments from the public and stakeholders, prior to the preparation of the Final Concept Plan for Council's consideration. BP/kms/saw Attachments: Appendix I Appendix II How Yin Leung Acting General Manager Planning and Development - Preferred Concept Plan Option - Draft Options Option A and Option B Presented at the Public Open House on October 19, 2006 Appendix III - Project Objectives for the Redevelopment of the Cloverdale Fairgrounds Appendix IV - Comment Sheet - Public Open House on October 19, 2006 v:\admin & policy\06data\oct-dec\11081427.bp.doc RB 11/20/06 10:10 AM
Preferred Concept Plan Option Redevelopment of the Cloverdale Fairgrounds Appendix I
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Draft Concept Plan Options Option A and Option B Presented at the Public Open House on October 19, 2006 Appendix II
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Appendix III Project Objectives Concept Plan Redevelopment of the Cloverdale Fairgrounds 1. Create opportunities for economic growth. 2. Increase the profile of the site as a regional attraction. 3. Arrange uses to enhance and connect with the Cloverdale community. 4. Flexible planning approach that will accommodate changes in the land use program. 5. Utilize the land efficiently. 6. Group complementary uses to create greater whole. 7. Minimize conflicts between uses. 8. Maximize the retention of existing facilities and amenities during the phased development. 9. Allow for continuity of use during phasing. 10. Provide ease of access and service to uses. 11. Create multi-use outdoor spaces. 12. Reinforce the pedestrian connection to the downtown core. 13. Create an attractive pedestrian realm. 14. Emphasize the greenness of the site and the quality of the landscape response. 15. Create clear legibility for the site as it relates to both automobile and pedestrian circulation. 16. Integrate heritage opportunities within the concept plan.
Comment Sheet Cloverdale Fairgrounds Development Concept Options Public Open House Thursday October 19, 2006 Appendix IV Two Draft Concept Plan Options are currently being considered in developing a Plan for the future development of the Cloverdale Fairgrounds Site. Please use this comment sheet to share your comments on the elements of the two Draft Concept Plans. Please note that the final preferred Concept Plan may contain elements from each of these draft options. Please note that you may also access and complete this Comment Sheet through the City of Surrey s website. Please see the back of this page for information. Please submit all comments by Thursday, October 26, 2006. 1. Which of the two Options do you generally prefer? Option A Option B Briefly, please explain why you prefer this option? 2. When looking at the two Options, which design features do you like most and least in each option and why (e.g. location of buildings, open space concept etc.)? Option A (Please note whether your comments are for Phase 1 Site Plan or for Full Build-out Site Plan). Features I like most and why? Features I like least and why? Option B (Please note whether your comments are for Phase 1 Site Plan or for Full Build-out Site Plan). Features I like most and why? Features I like least and why?
- 2 - Also, please complete the back of this page. 3. Are there any other considerations, and/or features that you feel should be incorporated into the design of the site? 4. Additional Comments? Name: Address: Phone No.: E-mail: Thank you for attending the Open House and completing this Comment Sheet. You may also access and complete this Comment Sheet through the City of Surrey s website www.surrey.ca by clicking on Living in Surrey, Community Development, City & Neighbourhood Plans, Plans in Progress and then Cloverdale Fairgrounds in the box on the left side. Look for News and Updates on the right side and click Comment Sheet under Public Open House October 19, 2006, or you may Deposit the completed Comment Sheet in the Comment Box at the Open House, or Fax it to the Planning & Development Department at 604-591-2507, or E-mail your comments to CF@surrey.ca, or Mail it to: Planning & Development City of Surrey 14245-56 Avenue Surrey, B.C. V3X 3A2 Please submit all comments by Thursday, October 26, 2006. The display materials shown at the Public Open House may be viewed on the City of Surrey s website at www.surrey.ca beginning Friday, October 20, 2006.