SPECIAL MEETING AGENDA REGULAR AGENDA

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1 REGIONAL DISTRICT OF NORTH OKANAGAN GREATER VERNON ADVISORY COMMITTEE MEETING Thursday, July 20, 2017 Boardroom Aberdeen Road, Coldstream, BC 9:00 a.m. SPECIAL MEETING AGENDA REGULAR AGENDA A. CALL MEETING TO ORDER B. APPROVAL OF AGENDA 1. Greater Vernon Advisory Committee - Special - July 20, 2017 RECOMMENDATION 1 That the Agenda of the July 20, 2017 special meeting of the Greater Vernon Advisory Committee be approved as presented. C. NEW BUSINESS 1. Multi-use Cultural Facility Preliminary Design and Planning RFP Staff reported dated June 14, 2017 RECOMMENDATION 2 Page 2-10 That it be recommended to the Board of Directors, staff be directed to issue the RFP #2017- P12 Greater Vernon Multi-Purpose Cultural Facility Functional Program, Site Analysis and Conceptual Design, as included in the staff report dated June 14, D. ADJOURNMENT Page 1 of 10

2 REGIONAL DISTRICT of NORTH OKANAGAN REPORT File No.: TO: FROM: Greater Vernon Advisory Committee Parks, Recreation and Culture DATE: June 14, 2017 SUBJECT: Multi-use Cultural Facility Preliminary Design and Planning RFP RECOMMENDATION: That it be recommended to the Board of Directors, staff be directed to issue the RFP #2017-P12 Greater Vernon Multi-Purpose Cultural Facility Functional Program, Site Analysis and Conceptual Design, as included in the staff report dated June 14, SUMMARY: As a result of direction from the Greater Vernon Cultural Plan (2016), and the inclusion of $100,000 in the 2017 financial plan to undertake planning for a new multi-purpose cultural facility, this report is coming forward to: 1. confirm with the Greater Vernon Advisory Committee the next steps in the process toward the development of a new multi-purpose cultural facility; and, 2. acquire the Committee s consent on the terms and scope of work as outlined in the request for proposal: RFP#2017-P12: Greater Vernon Multi-Purpose Cultural Facility Functional Program, Site Analysis and Conceptual Design, included in Attachment A. BACKGROUND/HISTORY: The Regional District is responsible for supporting cultural services within the Greater Vernon area on behalf of all four Greater Vernon partners. The level and means of that support has been defined in the Greater Vernon Cultural Plan, which was adopted by the Board of Directors in March Directive M1b of the Cultural Plan is to initiate the process for the development of a new multi-purpose cultural facility that would seek to address the identified gaps and deficiencies of: Public Art Gallery, as identified in the Vernon Public Art Gallery Canadian Conservation Institute Assessment (2014); Museum and Archives, as identified in the Greater Vernon Museum and Archives Canadian Conservation Institute Assessment (2014); Adaptable, small performance space (suggested seating of ); It is also to consider other community needs and potential synergies, and the opportunity for space designed to accommodate more youth-focused programming. Page 2 of 10

3 Report to: Greater Vernon Advisory Committee File No.: From: Parks, Recreation and Culture Date: June 14, 2017 Re: Multi-use Cultural Facility Proposed Work Plan & Preliminary Design RFP Terms of Reference Page 2 of 3 The Facility Development Process, as endorsed in the Cultural Plan, was developed based on best practice and has been included as Attachment B. DISCUSSION: With the Board of Directors having approved a budget of $100,000 in the 2017 financial plan to undertake the initial planning and design work for a new multi-purpose cultural facility, as outlined in steps 3, 4 and 5 of the Facility Development Process, staff has developed a draft request for proposal (RFP) for the Committee s consideration. The ultimate objective of the proposed work is to develop a building solution, including site and structure, that will meet the needs of the community and cultural institutions as listed in the Cultural Plan, within the capital and operating resources available (as determined by the Regional District). The development of such a building solution will inform the Regional District s decision to either: A. proceed to Step 6 in the New Facility Development Process (with willing participants); or, B. move back to the functional program development phase (Step 3 in the New Facility Development Process), in order to adjust the (programming) objectives of the facility to consider other building solutions. Steps 3-5 of the Facility Development Process, as reflected in the RFP, are summarized in the infographic, below: The process is to be objective driven, and as described in the RFP may be iterative where the functional program information, such as minimum facility size, is not accommodated by a suitable site solution. In this case, the process would return to the functional program phase and consider adjusting the facility objectives. The work will be lead by the Regional District of North Okanagan and facilitated by the consultant(s). Key stakeholders for the development of the functional plan will include the Greater Vernon Cultural Plan IAT, the Vernon Public Art Gallery, the Greater Vernon Museum and Archives, and the Okanagan Page 3 of 10

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5 REGIONAL DISTRICT OF NORTH OKANAGAN Attachment "A" 1.0 PURPOSE REQUEST FOR PROPOSAL PRC #2017-P12 Greater Vernon Multi-Purpose Cultural Facility Functional Program, Site Analysis and Conceptual Design PART II TERMS OF REFERENCE The functional program, site analysis and resulting conceptual design and budget developed through this project will help the Regional District of North Okanagan (Regional District) select a building solution to address the needs of the Vernon Public Art Gallery and Greater Vernon Museum and Archives as part of a multi purpose cultural facility. It is expected that the project deliverables will provide the information necessary for the Regional District to determine whether the building solution, as proposed, will move to the next steps of schematic design and a capital funding campaign. 2.0 BACKGROUND Greater Vernon is located in the North Okanagan with a current population of approximately 55,000 residents. It is made up of two municipalities, being the City of Vernon and the District of Coldstream, as well as two Regional District electoral areas, B and C. The Regional District is responsible for supporting cultural services within the Greater Vernon area on behalf of all four Greater Vernon partners, and the level and means of that support has been defined in the Greater Vernon Cultural Plan, 2016, which was adopted by the Board of Directors in March One of the directives of the Greater Vernon Cultural Plan (2016) is to initiate the process for the development of a new multi purpose cultural facility that would seek to address the identified gaps and deficiencies of: Public Art Gallery, as identified in the Vernon Public Art Gallery Canadian Conservation Institute Assessment (2014); Museum and Archives, as identified in the Greater Vernon Museum and Archives Canadian Conservation Institute Assessment (2014); Adaptable, small performance space (suggested seating of ); It is also to consider other community needs and potential synergies, and the opportunity for space designed to accommodate more youth focused cultural programming. A fair amount of preliminary work has been done to date, with both the Greater Vernon Museum and the Vernon Public Art Gallery having a preliminary Zoned Space Programs, and the Art Gallery having a business case developed. All of this background research and review will feed into the each phase of the project. Request for Proposal PRC #2017 P12 Part II Terms of Reference Page 5 of 10

6 3.0 SCOPE OF WORK PHASE 1. FUNCTIONAL PROGRAM DEVELOPMENT Purpose of the Functional Program Phase The purpose of the functional programming phase is to: Attachment "A" review all relevant local background information; research examples of best practice for co located cultural facilities; confirm the vision for the services proposed to be located within the facility (art gallery, museum, small performance space, multi use space), and establish how a new facility will help meet the goals and objectives for achieving the vision (planning goals, principles and assumptions); identify cultural program principles that are fixed (i.e. climate control requirements for exhibition areas), and other program assumptions that may be variable and thus subject to further testing as part of the right sizing process; identify synergies and opportunities for efficiencies between user groups that will further contribute to the right sizing process; While preliminary zoned space programs have been developed for the Greater Vernon Museum and Archives and the Vernon Public Art Gallery, they will need to be re evaluated in the context of the proposed facility, and put through a right sizing exercise that will look to make the preliminary plans progressively more sustainable. The aim of right sizing the facility program is to result in a facility that meets the needs of the institutions within the capital and operating resources (which will be directed by the Regional District), yet achieves the overall vision. The development of the final functional program will also consider broader community needs, such as flexible programming space, commercial rental opportunities and incorporate a small performance space/lecture theatre into each concept. Off site storage, and phasing potential may also be identified at this time. Deliverables of the Functional Program Phase The deliverables for the functional program phase will include: planning goals, principles and assumptions; a zoned space program; functional area descriptions; access, adjacency and circulation diagrams; building systems and standards; room data sheets; total building footprint; and, site requirements to feed into the site analysis phase. Request for Proposal PRC #2017 P12 Part II Terms of Reference Page 6 of 10

7 PHASE 2. SITE ANALYSIS Purpose of the Site Analysis Phase Attachment "A" The Consultant will work with the Regional District to develop a site evaluation matrix that will define key site criteria and apply a weight to each of those criteria, reflecting its importance. The site evaluation matrix will enable a consistent evaluation of all sites that are identified as meeting the minimum required parameters, such as size, location and key site and locale considerations, which will be defined during the previous Functional Program Phase 1. It is expected that the evaluation matrix may include site criteria such as: site availability; timeliness; cost; size and/or shape; public ownership; location; neighbourhood context; land use designation; site / locale considerations; accessibility; legal agreements; architectural guidelines; and servicing requirements. The Consultant will then examine properties within the city centre neighbourhood plan area, and compile a list of sites that meet the minimum required parameters, including in that consideration: vacant lots; lots with structures that would require demolition; properties with existing buildings that may be suitable for repurposing for the purposes of this project; and properties that may be suitable for phasing alternatives. It should be clarified that the minimum site footprint size may vary through multi story building design, off site storage (located outside of the city centre neighbourhood area) and/or phasing opportunities. Deliverables of Site Analysis Phase The deliverables for this phase will be a ranked list of site options, established through the agreedupon evaluation criteria. PHASE 3. BUILDING PROGRAM & BUDGET: CONCEPTUAL DESIGN OPTIONS WITH CLASS D CONSTRUCTION COST ESTIMATES AND PRO FORMA OPERATING BUDGETS Purpose of the Conceptual Design Phase Concept designs are relatively cursory studies that provide minimal detail to be able to quickly propose and test design solutions based on site and building constraints. The purpose of this phase will be to prepare a conceptual design for the selected site option, with approximate estimations of construction costs to a Class D estimate. This information will inform the decision to move on to the development of the schematic design and Class C cost estimate, or move back to the functional program development phase in order to consider adjusting the objectives of the facility (programming) to consider other site options. Request for Proposal PRC #2017 P12 Part II Terms of Reference Page 7 of 10

8 Deliverables of the Conceptual Design Phase a description of the facility that would provide the framework for the strategic and detailed design option; basic computer generated conceptual images of the building on the site; Attachment "A" a class D budget based on the total construction costs of the proposed conceptual design (including projected project management costs and all soft costs), and all projected costs associated with the selected site option; a pro forma operating budget based on the programming and conceptual design, including annual building and site operating and maintenance costs and projected revenues. Request for Proposal PRC #2017 P12 Part II Terms of Reference Page 8 of 10

9 NEW FACILITY DEVELOPMENT PROCESS Cultural facility needs identified Facility needs are identified through a needs assessment by way of: recommendation within an adopted Regional District planning document; imminent facility failure / loss of access; and/or Attachment "B" demonstrated evidence that regular programming demand has chronically exceeded facility capacity for several years. In addition to the above triggers, there must be adherance to the Cultural Infrastructure Investment Guidelines (page 43) and demonstrated on-going community need. The demonstrated need must consider impacts that related trends may have on the past or future levels of demand. This may include trends such as population, demographics, program/service popularity, or program/service delivery methods (i.e. certain services may be increasingly provided on-line; new activities, which are increasing in popularity, require different types/amounts of spaces). Regional District agrees to preliminary exploration of project In order to proceed to explore the development of a new facility that would ultimately be owned by the Regional District, the Regional District must give approval for preliminary exploration of the project. This will require that all participants of the service are agreeable to putting resources toward steps 3 and 4. There must be a high degree of interest in addressing the identified needs for a new facility, as well as a willingness to committing the resources necessary, within reason, as expectations will be established by initiating this process. Cultural programming plan The cultural program plan is the process of defining what needs we are constructing the facility to meet. This is the step where we take our needs assessment and determine whether there are other cultural organizations with facility needs that would have practical synergies, where co-location could be used to increase the use/value of a new facility/space. This may mean joint occupancy, or it could just be regular rental/tenancy. This is also the point where a value-added space(s) may be considered, such as the addition of a café or other complimentary service that could be rented out for the generation of revenue to offset operating or construction costs. Building program Once we have clearly identified the purposes for which the facility will be built to address, we can then start to design the facility to meet those purposes. In some cases there may be standards and best practices that can be used to help with this step, however the process must also be guided by the financial reality of both constructing and operating the facility, since the design of the building will have implications for both. This step will likely be iterative and will require facilitation, particularly if there are multiple stakeholders (which will almost always be the case). It will also be dependent on the size and availability of land and may result in having to move back to the cultural program development stage, if the appropriate property can not be obtained. Budget development The financial plan for both the capital cost and the ongoing operating budget for the new facility will depend on a combination of the cultural program plan and the building program. The cultural program plan may include opportunities to generate revenue, which can be used to offset the overall operating or construction costs of the facility (such as commercial rental revenue). This additional square footage could also be included as part of a long-term growth plan, where the cultural programming can move into the commercial rental space. Regional District agrees to proceed with project In order for the project to proceed, the Regional District must have an eligible service and be in agreement to fund the construction and any necessary on-going operating costs. This may require an amendment of scope of an existing service, or the establishment of a new service. The project will not continue past this step if agreement is not achieved. Financing The financing for the capital construction of a new facility may include a number of different sources. As outlined in the endorsed guiding principles for new cultural facilities, a minimum of 10% of the capital funding for any new cultural facility must come from sources other than the Regional District (without conditions). The Regional District may choose to provide some or all of the remainder of the necessary funding, and it has a couple of mechanisms available. Responsibilty for all operating funding should be clearly identified and documented. Construction Construction will be lead by the Regional District through a construction management team. Page 9 of 10

10 STEPS 2. REGIONAL DISTRICT AGREES TO PRELIMINARY EXPLORATION OF PROJECT 3. CULTURAL PROGRAMMING PLAN 1. Compile a list of space needs as determined through a recognized needs assessment measure. 2. Refer list of needs to the a steering team of stakeholders, facilitated by the Regional District, who will consider the needs and identify potential synergies, in consultation with affected service providers/organizations. 3. The steering team will develop a list of strengths, weaknesses, opportunities and threats for the potential synergies being accommodated in one building, with general financial parameters provided by the Regional District. 4. BUILDING PROGRAM 1. Using the recommended list of building space needs as a result of the cultural program plan, start to develop the building program, which includes the building requirements for the identified needs (HVAC considerations, etc), and space sizes, proximities. This will require significant consultation with the service providers/organizations, as well as support from an experienced architect and quantity surveyor. 2. Once the size of the facility is determined, existing publicly-owned properties should be examined and assessed for suitability. This could include new-build or re-purposing of existing buildings, provided that they are large enough and suitable for re-purposing. The area of focus should be the Vernon s City Centre Neighbourhood area. The building program process may be iterative if a suitably sized site can not be secured, or the budget is greater than available or acceptable; however care should be taken not to compromise the objectives of the project for savings in size or cost. 5. BUDGET DEVELOPMENT 1. If the budget scope comes back greater than available or acceptable, the building program should be reviewed for areas to cut-back, using caution to not compromise the objectives of the project. 2. Financing of the construction costs should be discussed, and roles, responsibilities, and sources of revenue should be identified for operating costs, including both general facility costs and anticipated programming costs. 3. Once the final construction budget is completed, in addition to the anticipated operating budget, the financial implications for the Regional District must be taken back to the Regional District for final approval. 6. REGIONAL DISTRICT AGREES TO PROCEED WITH PROJECT Attachment "B" 1. Understanding the financial implications of both the construction and ongoing operating costs of the project, if all participants of the existing service are in agreement to proceed with the project, the Service Scope Amendment Process should be initiated (if required). 2. If not all participants are in support, but those that are supportive are willing to create a new service to support the new facility, then a new service should be established. 7. FINANCING 1. CAPITAL All identified sources of capital funding, other than that to be provided by the Regional District, should be secured. If Regional District borrowing is required for the construction costs of the project, the process for obtaining elector assent should be initiated (suggested lead-time for referendum is 6 months, including public education) 2. OPERATING Agreements with all parties who will occupy the new facility should be established, using the guidelines established in the cultural plan and clarifying levels and mechanisms for any Regional District funding. 8. CONSTRUCTION 1. Establish a construction management team who will oversee the construction of the project. 2. Establish the construction process (ie. Design-Build, construction management, engineer-procure-construct or design-bid-build, etc.) and suitable contract types (cost-plus, lump sum, guaranteed maximum, etc.). 3. Initiate construction, to be lead by the Regional District through a construction management team. Page 10 of 10