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									                                                                         CITY WIDE
                                                                       IMPLICATIONS


                          CITY OF HAMILTON
            PLANNING AND ECONOMIC DEVELOPMENT DEPARTMENT
                    Development and Real Estate Division
                                      &
                       PUBLIC WORKS DEPARTMENT
                      Capital Planning & Implementation

Report to: Chair and Members            Submitted by: Lee Ann Coveyduck
           Economic Development                       General Manager
           & Planning Committee                       Planning and Economic
                                                      Development Department

                                                         Scott Stewart, C.E.T.
                                                         General Manager
                                                         Public Works Department

Date:        March 1, 2007              Prepared by:     Bill Farkas
File:        2005 072                                    (905) 546-2424, Ext. 7019

                                                         Gerry Davis
                                                         (905) 546-2424, Ext. 4621


SUBJECT:      St. Mark’s Church Feasibility Study (PED07111 / PW07037) – (City
              Wide)


RECOMMENDATION:

(a)     That the findings of the Feasibility Study, dated February 6, 2007, entitled St.
        Mark’s Church – Community Services Feasibility Study Findings, attached as
        Appendix “A” to Report PED07111 / PW07037, be received.

(b)     That St. Mark’s Church no longer be considered as a viable alternative to
        accommodate the Community Services Department.

(c)     That St. Mark’s Church be declared surplus to the requirements of the City of
        Hamilton in accordance with the “Procedural By-law for the Sale of Land”, being
        By-law No. 04-299.

(d)     That the Development and Real Estate Division of the Planning and Economic
        Development Department investigate the highest and best use and potential for
        increased value through rezoning to allow additional permitted uses prior to
        disposal of the subject site. Such additional uses will be compatible with the
SUBJECT:     St. Mark’s Church – Feasibility Study (PED07111 / PW07037) - (City
             Wide) - Page 2 of 6

       surrounding land uses and the Department shall consult with the neighbourhood
       on any zoning proposal prior to consideration by Committee and Council.

(e)    That subsequent to completing the rezoning process, the Development and Real
       Estate Division of the Planning and Economic Development Department be
       authorized and directed to tender the sale of St. Mark’s Church through the
       issuance of a Request for Proposal, located at 130 Bay Street South, pursuant to
       the “Procedural By-law for the Sale of Land”, being By-law No. 04-299.

(f)    That if no interest has been expressed for the subject property through the
       issuance of the Request for Proposal, that staff report back to Council on the
       future disposition of the site.

(g)    That this Report be forwarded to the Municipal Heritage Committee for
       information.




________________________________                ______________________________
Lee Ann Coveyduck                               Scott Stewart, C.E.T.
General Manager                                 General Manager
Planning and Economic Development               Public Works Department
Department

EXECUTIVE SUMMARY:

This report presents the results of the feasibility study to accommodate the Community
Services Department at St. Mark’s Church. To complete the feasibility study, a team of
City staff and specialist consultants were assembled to coordinate and develop various
engineering studies to provide an accurate assessment of the facility and site for
possible expansion.

The technical results of the St. Mark’s Church feasibility study are outlined in the report
dated February 6, 2007, entitled St. Mark’s Church – Community Services Feasibility. A
brief summary of the findings from this report has been provided in Appendix “A”. The
report describes that an order of magnitude capital expenditure cost of $11.7million has
been estimated to renovate the existing St. Mark’s Church building and construct a
26,000 ft2 expansion to accommodate the 148 staff and programme functions of the
Community Services Department.

Appendix “B” to Report PED07000/PED07000 presents a financial analysis of the total
anticipated cash outlays over a 40-year period should the Community Services
Department be accommodated at St. Mark’s Church compared to accommodating the
Community Services Department in other leased facilities. Based on the results
presented in Appendix “B”, staff recommends that St. Mark’s Church no longer be
considered as a viable alternative to accommodate the Community Services
Department.
SUBJECT:      St. Mark’s Church – Feasibility Study (PED07111 / PW07037) - (City
              Wide) - Page 3 of 6

Staff is further recommending that one last attempt be made following the completion of
a re-zoning process to issue a Request for Proposal (RFP) for the adaptive re-use of St.
Mark’s Church.

BACKGROUND:

The Community Services Department has approximately 148 employees who are
currently accommodated in leased facilities and City Hall. The current leases will expire
in 2007. On September 27, 2006, Council directed staff to investigate options to
accommodate the Community Services Department, stating “that investigation to
include priority consideration for this accommodation as part of an adaptive re-use of a
prominent or architecturally significant building on City-owned brownfield properties in
the core area as well as exploring St. Mark’s Church.” Council identified $6million in
funding priority for this work in the 2006 Budget priorities. These monies have not been
provided for in the draft 2007 capital budget priorities on the basis of the feasibility study
finds referenced in this report. In addition to presenting the results of the St. Mark’s
Church feasibility study, this report provides staff advice on taking the necessary steps
to invest in examining the highest and best use for the site and, having the lands re-
zoned to appropriate, compatible uses to facilitate a more successful disposal process
and, to promote the City objectives for the rehabilitation, redevelopment, conservation
and adaptive re-use of St. Mark’s Church through the issuance of an RFP.

The former St. Mark’s Anglican Church at 130 Bay Street South, Hamilton, was closed
in 1989 and, subsequently, acquired by the City of Hamilton in 1994. The acquisition
was made in an effort to conserve the church and to provide for open space in the
Durand Neighbourhood. The property (including the 1877 sanctuary, the 1925 Sunday
School and the landscaped grounds) was designated in 1995 under Part IV of the
Ontario Heritage Act. Despite calls for tenders for adaptive re-use, the church has
remained vacant and in municipal ownership. In 2000, the City (in response to a
development proposal) approved a change in zoning from E3 (high density multiple
dwellings) to modified “A” (conservation, open space, park and recreation), which allows
for open space and a place of worship, within the existing building only, however, no
new ownership resulted.

In 2004, the Corporate Management Team requested that the Planning and Economic
Development Department prepare a development analysis for the property in order to
facilitate the sale, since internal circulation had failed to identify a viable use (attached
as Appendix “C” to Report PED07111 / PW07037). Various site configurations were
developed at that time including: development of the property as a local area park;
retention of the existing building; or redeveloping the entire site through demolition of
the existing heritage building.

Upon staff completing its due diligence including obtaining all necessary planning
approvals, staff is of the opinion that the issuance of the RFP will eliminate the
uncertainty and potential risks faced by prospective purchasers. By eliminating these
potential risks, proponents may be more desirous in acquiring the lands on an “as is”
“where is” basis knowing that development/re-development can occur within a timely
manner.
SUBJECT:     St. Mark’s Church – Feasibility Study (PED07111 / PW07037) - (City
             Wide) - Page 4 of 6

In the event that no interest has been expressed for the subject property through the
issuance of the Request for Proposal, staff will report back to Council on the disposition
of the property including its potential use as active park space and further advice on any
re-zoning issues that may be warranted.

ANALYSIS/RATIONALE:

The existing St. Mark’s Church building is a designated heritage building that was
constructed in 1877. The building is a single storey masonry building with a floor area
of approximately 4,600 ft2. The Sunday School portion of the building has required
internal and external structural bracing for several years. Although the existing building
has been vacant for more than 5 years, the structural engineering analysis undertaken
for this study has deemed the building structure as stable, but requiring significant
rehabilitation and remedial repairs for the purposes of retrofitting for City office
accommodation.

A Project Team consisting of City staff and specialist consultants was assembled to
carry out the St. Mark’s Church feasibility study. After consultation with the Community
Services Department representatives, the Project Team determined that the department
consists of 148 City employees and they need to be accommodated in 35,000 gross ft2
of space.

The Project Team engaged specialist consultants to investigate the feasibility of
renovating and expanding the existing building to create 35,000 ft2 of office space to
accommodate the Community Services Department. The technical results of the St.
Mark’s Church feasibility study are summarized in a report dated February 6, 2007,
entitled St. Mark’s Church – Community Services Feasibility. A summary of the results
are provided in Appendix “A”.

The report findings suggest that the existing St. Mark’s Church building will require
selective demolition and extensive structural alterations to accommodate future City
staff functions. The renovation work would be carried out with consideration of the
municipal designation of the building under the Ontario Heritage Act. A new office
building expansion of about 26,000 ft2 would be constructed and connected to the
existing church building to provide the 35,000 ft2 required to accommodate the
Community Services Department. Due to site constraints, parking will not be available
on site. Handicapped parking accessibility would be provided at the street level and all
other parking access would be off-site, likely available at the City Hall property.

An order of magnitude cost of $11.7million has been estimated to renovate the existing
St. Mark’s Church and build the 26,000 ft2 expansion. Appendix “B” presents a financial
analysis of the total anticipated cash outlays over a 40-year period should the
Community Services Department be accommodated at St. Mark’s Church.
SUBJECT:     St. Mark’s Church – Feasibility Study (PED07111 / PW07037) - (City
             Wide) - Page 5 of 6

ALTERNATIVES FOR CONSIDERATION:

The scope of the study described herein was to investigate the feasibility of
accommodating the Community Services Department at St. Mark’s Church. No other
accommodation alternatives were considered at this time. Further consideration could
be given to accommodating another use in this facility as the structural engineering
analysis concluded that the building was a feasible candidate for renovation and
redevelopment.

To compare the financial feasibility of accommodating the Community Services
Department at St. Mark’s Church, a financial analysis of the total anticipated cash
outlays over a 40-year period of continuing to accommodate the Community Services
Department in downtown leased facilities was carried out. The results of this financial
analysis are presented in Appendix “B”.

FINANCIAL/STAFFING/LEGAL IMPLICATIONS:

Financial:   The results presented in Appendix “B” suggest that anticipated cash
             outlays over a 40-year period resulting from the renovation/construction of
             35,000 ft2, and accommodating the Community Services Department at
             the existing St. Mark’s Church site, is higher than the costs to continue to
             accommodate the same department in leased facilities. Based on
             financial considerations, staff recommends that St. Mark’s Church no
             longer be considered as a viable alternative to accommodate the
             Community Services Department.

Staffing:    Should the Community Services Department be accommodated at St.
             Mark’s Church, the City will need to address parking requirements for the
             148 staff who will be accommodated at this location, as there will not be
             parking available on site. It is assumed that the City will operate and
             maintain the facility using existing operations staff from City Hall.

Legal:       There are no known legal implications.

POLICIES AFFECTING PROPOSAL:

The former City of Hamilton OP states that: it is the intent of Council to encourage the
preservation, maintenance, reconstruction, restoration and management of property that
is considered to have historic, architectural or aesthetic value (Section 6.1). The
retention of St. Mark’s Church as part of a redevelopment would fulfill these policies.

RELEVANT CONSULTATION:

The Project Team consisted of representatives from Capital Planning and
Implementation, Finance and Corporate Services, Community Planning and Design
(Heritage and Urban Design), Real Estate, Community Services and Planning.
Engineering and technical reports were provided by MHPM Project Managers Inc.,
Morrison Hershfield, Jokinen Engineering Services and Amec Earth and Environmental.
SUBJECT:        St. Mark’s Church – Feasibility Study (PED07111 / PW07037) - (City
                Wide) - Page 6 of 6

CITY STRATEGIC COMMITMENT:

The approval of the recommendations herein endorses many of the principles and policies of the City’s
Vision 2020 as well as the City’s Strategic goal of a “City of Growth and Opportunity”. The redevelopment
and adaptive re-use of the St. Mark’s Church is considered to relate directly to the goals of a sustainable
community envisioned by Vision 2020 and the City’s focus of Downtown revitalization as part of its
economic development clusters.

By evaluating the “Triple Bottom Line”, (community, environment, economic implications) we can make
choices that create value across all three bottom lines, moving us closer to our vision for a sustainable
community, and Provincial interests.

Community Well-Being is enhanced.            Yes      No
The sale and development opportunities contribute to the strategic goal of a City of Growth and
Opportunity.

Environmental Well-Being is enhanced.             Yes     No
The initiative contributes to the strategic goal to encourage development which makes efficient and
economical use of infrastructure and services.

Economic Well-Being is enhanced.                Yes         No
Investment in Hamilton is enhanced and supported.

Does the option you are recommending create value across all three bottom lines?
                                            Yes     No

Do the options you are recommending make Hamilton a City of choice for high performance
public servants?                        Yes     No



:GD/BF
Attachs. (3)
                                   Appendix A to Report PED07111/PW07037, Page 1 of 1

  St. Mark’s Church                          Community Services Feasibility Study Findings
  February 6, 2007
  81551-3033                                                                 APPENDIX A
  COMMUNITY SERVICES FEASIBILITY STUDY FINDINGS
  The following is a brief description of the scope of work and related cost and schedule impacts related
  to accommodate the 148 staff from the Community Services Department at St. Mark’s Church. A
  detailed outline has been provided in the St. Mark’s Church Community Services Feasibility Study,
  prepared by MHPM Project Managers Inc., dated February 6, 2007.
  Description
  Implement necessary rehabilitation and renovation works to the existing St. Mark’s Church Building
  and the construction of a new building expansion of approximately 26,000 ft2 to accommodate a total
  of 35,000 ft2.
  Scope of Work
  Extensive rehabilitation, renovation and site development works to the existing church building would
  be required. This includes underpinning the foundations, which would result in a functional full-
  height basement, modifications to the first floor for public use, inserting a new mezzanine above the
  existing first floor for office use, as well as creating a two-storey atrium at the front of the church
  building, which face onto Bay Street. The existing Sunday School would be demolished and replaced
  by a new building expansion.
  The proposed new building expansion would be a four-storey building built perpendicular to the
  existing church in the existing park area adjacent to Hunter Street West. The new building expansion
  would have a full lower level or basement covering the whole area below the first floor subject to
  acceptance by the City. Alternatively a five-storey building would be required. Future studies would
  be required to determine the structural configuration of the building.
  There would be no on-site parking allowed and an agreement would have to be reached with the City
  for the provision of handicapped parking along the road adjacent to the building. Similarly, a delivery
  bay for building maintenance and office supplies would be provided on Hunter Street subject to City
  approval.
  Estimated Cost:
  Gross Floor Area: 35,000 ft2
  Cost per ft2: $267/ ft2
  Construction Cost: $9,340,000
  (Refer to Analysis Summary in Figure 1)
  Total Project Cost: $11,675,000 ($9,340,000 plus 25% soft cost, contingencies etc)
  Project Schedule: Project delivery would take approximately 36 months.

FIGURE 1 - ANALYSIS SUMMARY
                                                     Total Cost/per Construction Total Cost       Comments/
     Description                 Work Detail          sq.ft. sq.ft.    Cost      (+ 25%)*       Requirements
                      -   Rehabilitation &                                                      Regulatory /
                          renovation                                                            City approvals
Carry out necessary   -   Underpin foundation,                                                  required
rehabilitation &          create basement
construction of a new -   Add second floor
building to               mezzanine in church        9,000      $200  $1,800,000
accommodate 35,000 sf -   Demolish Sunday School                                                Regulatory/
                      -   construct new building and                                            City approvals
                          site services                                                         required
                                                     26,000     $290  $7,540,000
                                                          Subtotal     $9,340,000 $11,675,000
Community Services Feasibility Study                                                             Appendix B to Report PED07111/PW07037, Page 1 of 1

81551-3031 January 24, 2007
ASSUMPTIONS AND COST DATA USED FOR ANALYSIS
                                                RENOVATE ST MARK'S CHURCH                                                             CONTINUE TO LEASE
                                                        OPTION 1                                                                          OPTION 2
Assumptions
                                 Description Carry out necessary rehabilitation &        Continue to lease 35,000 rsf at other downtown locations.
                                             construction of existing church and
                                             construct a new building to
                                             accommodate 35,000 gsf
                                Lease cost No lease costs                              Initial lease costs are 35,000 rsf @$20 psf and the increase is at 3% per annum
                              Operating cost Initial Year 1 operating costs are 35,000 Operating costs are 420,000 sf @ $16 and increase @3% per annum.
                                             gsf @$15 and increase at 3% per annum



                          Efficiency Savings No efficiency.                              Annual savings by accommodating staff in 1 location. Assumed to reduce annual costs by $750,000 per annum.




                              Building costs Total capital cost of $11,675,000 to        Building costs include tenant improvements of 35,000 rsf @ $30 psf
                                             renovate St. Mark's Church and
                                             construct new office expansion
                            Facility Renewal Facility renewal costs are 1.25% of         Facility renewal costs are 1.25% of Building Costs per annum
                                             Building Costs per annum
                             Residual Value Residual value of building and lease         Residual value of City Hall building is assumed to be equal to zero after 40 years. Residual value of expansion is
                                             improvements is assumed to be equal to      230,000 gsf @$25 after 40 years.
                                             zero after 40 years.


Capital Costs
                           Interest Rate                                    5.50%                                                                                                                5.50%
                     Amortization period                                        25                                                                                                                   25
                           Building Costs                              $11,675,000                                                                                                           $1,050,000
                          Lease Breaking                                        $0                                                                                                                   $0
                  Total 2010 Capital Cost                              $11,675,000                                                                                                           $1,050,000

                  Total 2020 Capital Cost

Debt Charges
  Annual Debt Charges arising from Total                                   $870,364                                                                                                              $78,277
                            Capital Cost
               Total 2010 Debt Charges                                     $870,364                                                                                                              $78,277


Occupancy Costs
             Operating Costs - St Mark's                                   $525,000                                                                                                                   $0
            Annual Facility Renewal Cost                                   $145,938                                                                                                              $13,125
                    Year 1 Leasing Costs                                         $0                                                                                                             $700,000
           Total Occupancy Costs - 2010                                    $670,938                                                                                                             $713,125

  Total Occupancy Costs + Debt Charge-                                   $1,541,301                                                                                                             $791,402
                                Year 1

CASH OUTFLOWS AND COMPARATIVE NET PRESENT VALUES
                                                     RENOVATE & EXPAND                                                                RENOVATE EXISTING
                                                         OPTION 1                                                                         OPTION 2
Cash Outflow
                                                                          $1,541,301                                                                                                            $791,402
                                      2011                                $1,557,051                                                                                                            $812,402
                                      2012                                $1,573,274                                                                                                            $834,032
                                      2013                                $1,589,983                                                                                                            $856,311
                                      2014                                $1,607,193                                                                                                            $879,258
                                      2015                                $1,624,920                                                                                                            $902,894
                                      2016                                $1,643,179                                                                                                            $927,238
                                      2017                                $1,661,985                                                                                                            $952,314
                                      2018                                $1,681,355                                                                                                            $978,141
                                      2019                                $1,701,307                                                                                                           $1,004,743
                                      2020                                $1,721,857                                                                                                           $1,032,143
                                      2021                                $1,743,024                                                                                                           $1,060,366
                                      2022                                $1,764,826                                                                                                           $1,089,434
                                      2023                                $1,787,281                                                                                                           $1,119,375
                                      2024                                $1,810,411                                                                                                           $1,150,215
                                      2025                                $1,834,234                                                                                                           $1,181,979
                                      2026                                $1,858,772                                                                                                           $1,214,696
                                      2027                                $1,884,046                                                                                                           $1,248,395
                                      2028                                $1,910,079                                                                                                           $1,283,105
                                      2029                                $1,936,892                                                                                                           $1,318,856
                                      2030                                $1,964,510                                                                                                           $1,355,680
                                      2031                                $1,992,956                                                                                                           $1,393,608
                                      2032                                $2,022,255                                                                                                           $1,432,674
                                      2033                                $2,052,434                                                                                                           $1,472,912
                                      2034                                $2,083,518                                                                                                           $1,514,358
                                      2035                                $2,115,535                                                                                                           $1,557,046
                                      2036                                $2,148,512                                                                                                           $1,601,016
                                      2037                                $2,182,478                                                                                                           $1,646,304
                                      2038                                $2,217,463                                                                                                           $1,692,951
                                      2039                                $2,253,498                                                                                                           $1,740,998
                                      2040                                $2,290,614                                                                                                           $1,790,486
                                      2041                                $2,328,843                                                                                                           $1,841,458
                                      2042                                $2,368,220                                                                                                           $1,893,960
                                      2043                                $2,408,777                                                                                                           $1,948,036
                                      2044                                $2,450,551                                                                                                           $2,003,736
                                      2045                                $2,493,579                                                                                                           $2,061,106
                                      2046                                $2,537,897                                                                                                           $2,120,197
                                      2047                                $2,583,545                                                                                                           $2,181,060
                                      2048                                $2,630,563                                                                                                           $2,243,750
                                      2049                                $2,678,990                                                                                                           $2,308,321
                                      2050                                $2,728,871                                                                                                           $2,374,828
                 Total Future Cash Outflows                              $81,425,279                                                                                                          $58,020,381

   Net Present Value of Future Cash Outflows                             $29,649,746                                                                                                          $19,256,045

                             Residual Value                                         $0                                                                                                                  $0

     Net Present Value of Future Cash                                    $29,649,746                                                                                                          $19,256,045
        Outflows less Residual Values
St. Mark’s Anglican Church: Site Potential




                                      City of Hamilton
                          Long Range Planning & Design
                         Community Planning and Design
TABLE OF CONTENTS:
                                                                                                Page Number
1.0   Introduction                                                                                  1
        1.1       Purpose of this Report                                                            1
        1.2       St. Mark's Anglican Church: Background                                            1

2.0     Site Conditions and Planning Context                                                        2
        2.1       Existing Site Conditions                                                          2
        2.2       Ontario Heritage Act, Part IV Designation By-law                                  2
        2.3       Existing Zoning Provisions                                                        2
        2.4       Official Plan Policies and Designation                                            3
        2.5       Neighbourhood Plan Policies                                                       3
3.0     Conservation and Development Options: Pros and Cons                                         4
        3.1       Adaptive Re-use of Existing Structure: Residential, Commercial, Mixed Use         4
        3.2       Adaptive Re-use of Existing Structure and Construction of New Addition (I)        6
        3.3       Adaptive Re-use of Existing Structure and Construction of New Addition (II)       8
        3.4       Demolition and New Construction: Residential (I)                                  10
        3.5       Demolition and New Construction: Residential (II)                                 12
        3.6       Park and Open Space Uses                                                          14
4.0     Summary and Conclusions                                                                     16
List of Figures
Option 1                                                                                            5
Option 2                                                                                            7
Option 3                                                                                            9
Option 4                                                                                            11
Option 5                                                                                            13
Option 6                                                                                            15
Appendix A:




                                           St. Mark’s Anglican Church: Site Potential
1.0     INTRODUCTION                                            1.2     ST. MARK'S ANGLICAN CHURCH:
                                                                        BACKGROUND
In February 2004, CMT requested the Planning and
Development Department to prepare a development                 St. Mark's Church, located at 120 Bay Street South, was
analysis for a municipally owned property located at 120 Bay    built in 1878 with a Sunday School portion was added 1925.
Street South, formally known as St. Mark's Anglican Church.     On July 28, 1994 City Council approved the purchase of St.
The purpose of the development analysis is to establish a       Marks at a cost of $425,000 for the purposes of 'OPEN
variety of feasible development options for the site in order   SPACE' and 'PUBLIC USAGE' of the facility. Following the
to facilitate the sale of the St. Mark's property for a         acquisition, the former Council of the City of Hamilton,
maximum financial return.                                       approved the designation of 120 Bay Street South under
                                                                Part IV of the Ontario Heritage Act under by-law 95-13.

1.1     PURPOSE OF THIS REPORT                                  Early 1990's Diocese of Niagara made an application for a
                                                                high-rise development for 120 Bay Street S. The proposal
The purpose of this report is to examine various                was to build a 10 storey, 48 unit apartment building
development options for St. Mark's Church property              combined with offices and a chapel in the preserved section
through disposal of the site for an optimal financial return.   of the church. The former city of Hamilton Council denied
Included in this report is a discussion on how the St. Mark's   the application necessary for re-zoning. The application was
property could potentially be developed. This report will       subsequently approved by the Ontario Municipal Board in
review and analyze a variety of development options.            September 1990. However, the diocese’s plans for a non-
Accompanying this report are a series of sketches prepared      profit housing and office complex fell through.
to illustrate the development options. This report will
conclude with a vision statement and a series of objectives,    In September 1994, the City of Hamilton purchased the
as well as, a variety of feasible land use concepts.            site at a cost of $425,000. Since 1994, the site has
                                                                remained vacant and in municipal ownership with no capital
The various site options were developed by assessing local      restoration undertaken. The structure is slowly
area park needs, the potential for retention of the existing    deteriorating.
building, and the potential of re-developing the entire site
including demolition of the existing building.                  In 1999 the Community Planning Department of the City of
                                                                Hamilton put out a Request for Proposals (RFP) for the
                                                                subject property. The RFP resulted in the proposed sale of
                                                                the site to the Charismatic Episcopal Church. One of the
                                                                conditions of the property sale was the rezoning of the
                                                                site from 'E3' (High Density Multiple Dwellings) to modified
                                                                'A' (Conservation, Open Space, Park and Recreation)
                                                                designation. The zoning change was approved however, the
                                                                sale of the property did not take place as the church was
                                                                not in a position to complete the offer to purchase
                                                                document.




                                              St. Mark’s Anglican Church: Site Potential                                       1
2.0      SITE CONDITIONS AND PLANNING                                   a corner bell tower was erected on its Bay Street facade and, in
                                                                        1925, the Sunday school was added to the west end of the
         CONTEXT                                                        sanctuary. The grounds in front of St. Mark's traditionally have
                                                                        been landscaped, creating a park-like setting for the church.
2.1      EXISTING SITE CONDITIONS
                                                                        The church and Sunday school together create a single storey,
120 Bay Street South has a site area of 0.141 ha and has                L-shaped structure with an attached three-storey tower. It is
                                                                        the fifth Anglican church to be erected in Hamilton and the first
frontage on both Bay Street South and Hunter Street.                    to be constructed in brick. As originally built in 1878, St Mark's
Located on the site is a single storey, red brick church, built         was a typical parish church building, designed in the vernacular
to an L shape plan and featuring an attached 3 storey tower             Gothic Revival tradition. Characteristic of this late 19th-
at the north-east corner. A red-brick Sunday School                     century version is the rectangular, one-storey, brick structure
addition is located at the west end.                                    with gable roof, buttresses, belfry, and pointed arched windows.
                                                                        St. Mark's Church is distinguished in the use of brick corbelling
A landscaped area featuring pathways and a number of                    and sets of triple arched windows which formerly contained
ornamental plantings are located in the north-east quadrant             stained glass. A bell tower, built later, adds a strong
of the site.                                                            architectural feature to the east facade, while the gothic
                                                                        Sunday school and entrance porch of 1925 blend harmoniously
The west wall of the 1925 Sunday school is currently being              with the original design of the church.
supported structurally through rented bracing at an annual
cost of $24,000. The structural bracing has been in place               2.3             EXISTING ZONING PROVISIONS
since 1995-96. This site has an annual budget requirement
to maintain the property. The bracing for the structure being
rented by the City, has to date cost the Corporation                    The subject site is zoned “A” (Conservation, Open Space,
approximately $192,000.                                                 Parks and Recreation) District modified, under the City of
                                                                        Hamilton By-law No. 6593. Only the following uses are
                                                                        permitted:
                                                                                        A Place of Worship within the existing
2.2      ONTARIO HERITAGE ACT, PART IV                                        1.
                                                                                        building only;
         DESIGNATION BY-LAW
                                                                              2.        Offices for outreach programs accessory to a
The property is designated by By-law 95-13 under Part IV of                             Place of Worship, including counseling
the Ontario Heritage Act. Permits are required for any                                  program but excluding overnight
alterations or additions that affect the Reasons for                                    accommodations, within the existing
Designation contained in the By-law. The By-law provides                                building only; and,
context on the historical and cultural significance on the St.
Marks’ structure. Permit Applications are also required for                        3.    Public Open Space.
demolition .
          1



In 1877, construction of St. Mark's Anglican Church began at the
southwest corner of Bay Street South and Hunter Street West.
By January 1878, the church had its first service. Subsequently,




                                                       St. Mark’s Anglican Church: Site Potential
LACAC has agreed in principal to the demolition of the Sunday School.
                                                                                                                                             2
1
2.4      OFFICIAL PLAN POLICIES AND                                 “6.9 A Heritage Impact Assessment may be
         DESIGNATION                                                required by the City for any development or
                                                                    redevelopment, both public and private            initiatives,
Under the City of Hamilton's Official Plan, Schedule 'A'- Land      that proposes to erect, demolish or        aler buildings or
Use Concept, the St. Mark's site is identified as                   structures on or adjacent to properties that meet one
“RESIDENTIAL”. The intent of the residential designation is         or more of the following criteria: (O.P.A 160):
to provide for a variation of densities and housing types,
while ensuring the maintenance of amenities for residents.                i) The properties are designated under the Ontario
However, as stated in Section 2.1.3 of the OP, additional                 Heritage Act or are adjacent to buildings/structures
uses permitted within the “RESIDENTIAL” designation are:                  that are designated       under the Ontario Heritage
                                                                          Act;

i.      Public parks less than 0.4 hectares in size;
                                                                    2.5      NEIGHBOURHOOD PLAN POLICIES
ii.     Schools, churches and similar institutional
        uses less than .4 hectare in size, in                       The St. Mark's site is located within the Durand
        accordance with the provisions for Major                    Neighbourhood. Under the Neighbourhood Plan the subject
        Institutional uses as set out in Subsection                 site is designated “Civic & Institutional”.
        A.2.6 of this Plan;
iii.    Individual retail or service stores in a multiple
        welling containing at least 100 dwelling
        units, expressly to serve the occupants
        therein; and,

iv.     Limited individual or groups of commercial
        uses on sites not exceeding 0.4 hectare in
        area, e x c l u d i n g A u t o m o b i l e S e r v i c e
        Centres, in accordance with the Commercial
        Polices as set out in Subsection A.2.2 of this
        Plan.
The City of Hamilton OP has policies specific to historic and
architectural resources. It is the intent of the OP that
those resources of historic, architectural, archaeological
and aesthetic merit will be preserved where feasible.
Section 6.9 of the OP states:




                                                 St. Mark’s Anglican Church: Site Potential                                          3
3.0 CONSERVATION & DEVELOPMENT                                  PROS
    OPTIONS: PROS AND CONS
                                                                *   Assists in preserving portion of the heritage
Before taking further action on the St. Mark's property, the        building on its landscaped grounds and
City's Long Range Planning and Design Division has developed        partially promotes sound conservation.
a series of conservation and development options for the
property. Included in this Section is a rationale for each      *   Reduces liability inherent in unstable
option which attempts to maximize the return to the City.           building portion and reduces ongoing
                                                                    stabilization costs
3.1           ADAPTIVE RE-USE OF EXISTING STRUCTURE:
              RESIDENTIAL, COMMERCIAL, MIXED USE                *   The creation of on site parking.

Option 1 comprises the adaptive re-use of the existing          CONS
structure with retention of the original Church building and
demolition of the Sunday school portion. Proposed uses for      *   Financial cost associated with the demolition   o f
this re-development option are Residential, Commercial,             the Sunday school portion along with
and/or Mixed Use. This development option has the following         substantial costs to stabilize and renovate t h   e
site potential:                                                     structure.

          ·   Building foot print of approximately 357.5 m2 ;   *   Alteration of the building would lessen its
      ·       23.8% coverage;                                       heritage integrity.
      ·       2 stories;
      ·       13 parking spaces;                                * Any development applications made for anything
      ·       Vehicular access onto Bay Street; and,              other than a park use may result in opposition by th e
      ·       Private garden area.                                Durand Neighbourhood residents, who
                                                                  desire a park on this site.
Table 1 depicts the number of units that potentially could
be developed within the existing structure depending on         POLICY ISSUE
the proposed use.
                                                                All three (3) proposed adaptive re-uses of the c h u r c h
Table 1: Unit Potential                                         structure requires a zoning change,     OPA, and a
                                                                Neighbourhood Plan amendment, and site plan control
 Proposed Use                 No. Of Units                      approval.
 Residential                  6 Loft Apartments
 or Commercial                6 Office Units
 Or Mixed Use                 3 Apartments, 3 Office Units




                                                     St. Mark’s Anglican Church: Site Potential                              4
                                                                                        Option 1
                                                    Street Tree Planting

                                                    Parking Lot
 HUNTER STREET                                      Screen/Landscape
                                                    Feature
                                                                                        Site Plan: Ground Floor

                                                                                        Adaptive Re-use of Existing
                                                                                        Structure




                                                                           BAY STREET
                                                           2.4m
                                                                                        Building foot print            357.5 sq. .M
Parking Lot
(13 Spaces)                                                                             Coverage                             23.8%
Typical Stall Size




                                                           6.0m
2.7x6.0m                                                                                No. of parking spaces                    13
                                                                            Vehicular   Total number of floors                    2
Private courtyard         Loading                                           Access




                                                           6.0m
                                                                                        Development Options
                                                                                        1A-All residential       6 Loft apartments
                                                                                        1B-All commercial            6 Office units




                                                           6.0m
                                                                                        1C-Mixed use                 3 Office units
                                    Main Entrance                                                                3 Apartment lofts
                                                                           Pedestrian
                                                                           Access       Minimum area per unit             100sq.m


                                     Lobby

                                                                  Unit 1
                         Unit 3               Unit 2




                                     Existing Alley




                                                                                                                             5
                 Not to Scale


                                             St. Mark’s Anglican Church: Site Potential
3.2       ADAPTIVE RE-USE OF EXISTING                            *   Three (3) storey addition increases the amount of
          STRUCTURE & CONSTRUCTION OF NEW                               developable floor area.
          ADDITION(I)                                            *   Creates on site parking.
The proposed commercial development option (Option 2)
retains the existing 1878 church demolishes the 1925
Sunday school portion, replacing it with a three storey          CONS
addition. The commercial option has the following site
potential:
                                                                 *   Financial cost associated with the demolition of
*     Building foot print of approximately 550m ;  2                 the Sunday school portion along with
*     37% coverage;                                                  substantial costs to stabilize and renovate the
*     14 parking spaces;                                             structure.
*     Vehicular access onto Bay Street; and,
*     3 stories.                                                 *   Alteration of the building would lessen its
                                                                     heritage integrity.
Table 2 depicts the number of units that potentially could be
developed within the existing structure depending on the         *   Any development applications made for
proposed use.                                                        anything other than a park use may result in
                                                                     opposition by the Durand Neighbourhood
                                                                     residents, who desire a park on this site.
    Table 2: Unit Potential
                                                                 *   Loss of landscaped setting.
    Proposed Use                No. Of Units
                                                                 *   The character of the area is predominantly residential.
    Residential                7 Loft Apartments                     From a land use prospective introducing commercial
    or Commercial              7 Office Units                        uses to this site may not be supportable.
    or Mixed Use               3 Apartments, 4 Office Units
                                                                 POLICY ISSUE
                                                                 All of the adaptive re-use options require a zoning change,
                                                                 Official Plan amendment, Neighbourhood amendment, and
PROS                                                             site plan approval.

*     Assists in preserving key portion of the heritage
      building on its landscaped grounds and partially
      promotes sound conservation.
*     Reduces liability inherent in unstable building portion.




                                                   St. Mark’s Anglican Church: Site Potential                                  6
                                                                                                  Option 2
                                                       Street Tree Planting

                                                       Parking Lot
       HUNTER STREET                                   Screen/Landscape
                                                       Feature
                                                                                                  Site Plan: Ground Floor

                                                                                                  Adaptive Re-Use of Existing
                                                                                                  Structure with Addition: (I)
                                                                                                                        Limit of existing building




                     6.0m
                                                                                                  Building foot print                         550 sq.m
                                                                                                  Coverage                                           37%
Parking Lot                                                                   Vehicular
(14 Spaces)                                                                   Access              No. of parking spaces                                14

                     6.0m
Typical Stall Size
2.7x6.0m                                                                                          Total number of floors                               3
                                                                                                  Addition                            3 floors /3 units
                     3.0m 6.0m


                                                                                                  Existing building                   2 floors/ 4 units
                                                                                  Pedestrian
                                       Main Entrance                              Access          Total number of units                           7 units
                                                                                                  Development Options
     3 Storey                     Lobby                                                           2A All Residential             7 Loft Apartments
     Office
                                                                                                  2B All Commercial              7 Office Units

                     2 Storey Office             2 Storey Office                                  2C Mixed Use                   3 Loft Apartments
                                                                                                                                 4 Office Units




                                                                                     BAY STREET
                                                                                                  Minimum area per unit                        100sq.m


  Loading Area                          Existing Alley




             Not to Scale


                                                St. Mark’s Anglican Church: Site Potential                                                           7
3.3      ADAPTIVE RE-USE OF EXISTING
         STRUCTURE & CONSTRUCTION OF                            *   Creates on site parking.
         NEW ADDITION (II)
The proposed mixed use development option (Option 3)            CONS
retains the existing church portion of the building,
demolishes the Sunday school portion and replaces it with a     *   Financial cost associated with the demolition of
three storey addition on the west side of the site. The             the Sunday school portion along with substantial
development option has the following site potential:                costs to stabilize and renovate the structure.
*    Building foot print of approximately 770m ;
                                                  2
                                                                *   Alteration of the building would lessen its
*    52% coverage;                                                  heritage integrity.
*    11 parking spaces;
*    Vehicular access onto Hunter Street; and,                  *   Any development applications made for
*    3 stories.                                                     anything other than a park use may result in
                                                                    opposition by the Durand Neighbourhood
Table 3 depicts the number of units that potentially could be       residents, who desire a park on this site.
developed within the existing structure depending on the
proposed use.
                                                                POLICY ISSUE
    Table 3: Unit Potential                                     All of the adaptive re-use options require a zoning change,
                                                                Official Plan amendment, Neighbourhood amendment, and
    Proposed Use          No. Of Units                          site plan approval.
    Residential           13 Loft Apartments
    or Commercial         13 Office Units
    or Mixed Use          8 Apartments, 5 Office Units


PROS
*    Assists in preserving portion of the heritage
     building on its landscaped grounds and partially
     promotes sound conservation.
*    Reduces liability inherent in unstable building portion.
* Three (3) storey addition increases the
  amount of developable floor area.



                                                  St. Mark’s Anglican Church: Site Potential                                  8
                                                                                     Option 3
             HUNTER STREET                    Vehicular
                                              Access
                                                                                     Site Plan: Ground Floor
               Pedestrian
               Access                                                                Adaptive Re-Use of Existing
                                                                                     Structure and Addition (II)
                                                                                     (Existing Structure with Addition on West
                                                                                     side of Site)
                Retail/                                                                         Limit of existing building
                Office                  6.0m      6.0m      6.0m   Parking Lot
                                                                   Screen/
                                        2.4mm                      Landscape         Building foot print                     770 sq.m
                                                                   Feature
                Retail/                                                              Coverage                                     52%
                Office
                                                                                     No. of parking spaces                           11
                                                                   Parking Lot (11
                                                                   Spaces)           Total number of floors                          3
                                                                   Typical Stall
                Retail/                                            Size 2.7x6.0m     Ground level                               5units
                Office
                                   Main                                              Floors 2&3                                8 units
                                   Entrance
                                                                                     Total number of units                     13 units
                                                                   Pedestrian
                                                                   Access            Development Options
   Service
   Area                                                                              3A All Residential          13 Loft Apartments
                                                                                     3B All Commercial                13 Office Units
                                                                                     3C Mixed Use       5 Office Units, 8 Apartments




                                                                     BAY STREET
                   Retail/Office                 Retail/Office                       Minimum area per unit                    100sq.m

Loading
Area


                      Existing Alley




                                                                                                                                 9
             Not to Scale


                                                 St. Mark’s Anglican Church: Site Potential
3.4      DEMOLITION AND NEW CONSTRUCTION:
         RESIDENTIAL (I)
                                                                 POLICY ISSUE
Option 4 proposes the demolition of the entire existing
structure. It also entails the construction of a new 3           The residential development requires a zoning change,
stories residential building along the south side of the site.   Official Plan amendment, Neighbourhood Plan amendment,
The residential option has the following site potential:         and site plan approval. Any development applications made
                                                                 for anything other than a park use may result in opposition
*     Building foot print of approximately 714m2;                by the Durand Neighbourhood residents, who desire a park
*     58% coverage;                                              on this site.
*     18 parking spaces;
*     Vehicular access onto Bay Street;
*     Loading area; and,
*     12 Apartment Units
PROS
*     Reduces total liability and costs inherent in entire
       building complex.
*     The creation of on site parking and the
      provision of on site loading.
*     Low rise building reflects character of the former
      structure and is supportable to site character.


CONS
*         Cost of demolition.
*         Heritage “costs” incurred as a result of
          compromising all heritage attributes
          mentioned in “Reasons for Designation”.
*         Loss of City's leadership in role in community as
          steward and custodian of Hamilton's
          cultural heritage.
*         Loss of landscaped setting.



                                                    St. Mark’s Anglican Church: Site Potential                                 10
                                                                                                      Option 4
                                                      Street Tree Planting
          HUNTER STREET                               Parking Lot
                                                      Screen/Landscape
                                                      Feature
                                                                                                      Site Plan: Ground Floor

                                                                                                      Demolition and New
                                                                                                      Construction: Residential (I)
                                                                                                      Building foot print               714 sq.m
                                                                                                      Coverage                             48%




                                                             6.0m
                                                                                                      No. Of parking spaces                  18
                                                                             Vehicular
                            Parking Lot (18 Spaces)                          Access                   Total number of floors                   3
                            Typical Stall Size 2.7x6.0m




                                                             6.0m
                                                                                                      Apartment units at ground level         4
                                                                                                      Apartment units per floors 2 &3         8




                                                             6.0m
                                                                                                      Total number of units                   12
                                                                                    Pedestrian        Minimum area per unit              110sq.m




                                                             3.0m
                                                                                    Access

  Apt.
  Lobby
               Apt.           Apt.           Apt.         Apt.
               Unit           Unit           Unit         Unit




                                                                                         BAY STREET
                         Service Corridor
Loading                              Existing Alley
Area




                                                                                                                                           11
          Not to Scale


                                               St. Mark’s Anglican Church: Site Potential
3.5        DEMOLITION AND NEW CONSTRUCTION:                 CONS
           RESIDENTIAL(II)
                                                            *   Cost of demolition.
Option 5 proposes the demolition of the entire existing
structure. It also entails the construction of a new 3      *   Heritage “costs” incurred as a result of
storey residential building with an L-shaped building           compromising all heritage attributes
footprint with frontage along Bay Street. The residential       mentioned in “Reasons for Designation”.
option has the following site potential:
                                                            *   Loss of City's leadership in role in community as
*     Building foot print of approximately 1016m ;
                                                2
                                                                steward and custodian of Hamilton's
*     68% coverage;                                             cultural heritage.
*     10 parking spaces;
*     Vehicular access onto Hunter Street;
*     Pedestrian access of Bay Street;                      POLICY ISSUE
*     Loading area;
*     3 stories; and,                                       The residential development requires a zoning change,
*     16-22 apartment units.                                Official Plan amendment, Neighbourhood Plan amendment,
                                                            and site plan approval. Any development applications made
                                                            for anything other than a park use may result in opposition
PROS                                                        by the Durand Neighbourhood residents, who desire a park
                                                            on this site.
*   Reduces total liability and costs inherent in entire
    building complex.
*     The creation of on site parking and the
      provision of on site loading.

*     Low rise building reflects character of the former
      structure and is supportable to site character.




                                                St. Mark’s Anglican Church: Site Potential                                12
                                                          HUNTER STREET                        Option 5
                                    Vehicular
                                                                                               Site Plan: Ground Floor
                                    Access
                                                                                               Demolition and New
                                                                                               Construction: Residential (II)
                                                                     Apt Unit                  Building foot print               1016 sq.m
                           6.0m     6.0m          6.0m                                         Coverage                               68%
                                                                                               No. of parking spaces                    10




                                                                                 BAY STREET
                                                                     Apt. Unit                 Total number of floors                   3
Parking Lot                                                                                    Apartment units at ground level           9
(10 Vehicles)                                                                                  Apartment units per floors 2 &3         4-6
Typical Stall Size                                                  Apt. Unit
2.7x6.0m                                                                                       Total number of units                 16-22
                                                 Main
                                                 Entrance
                                                                                               Minimum area per unit              100sq.m
                                                                                   Pedestrian
                              Apt. Unit                  Lobby      Apt. Unit      Access to
      Apt. Unit                                                                    Unit From Bay
                                                                                   Street
                                                                                   (Typical)




             Apt. Unit        Apt. Unit                          Apt. Unit

                                                    M    F

   Loading
   Area                                         Existing Alley




                                                                                                                                    13
                     Not to Scale

                                                         St. Mark’s Anglican Church: Site Potential
3.6      PARK AND OPEN SPACE USES                              POLICY ISSUE
The St. Marks site was originally purchased by the City of     There are no policy issues with the proposed park use.
Hamilton out of park funds. Option 6 proposes a passive park
use for the site with a variety of design features. The
proposal has 4 pedestrian entries into the site and is
enclosed with decorative wrought iron fencing. The park
layout has the potential to provide areas for sculpture
placement along with decorative entrance markers.
PROS
*       Reduces total liability and costs inherent in entire
        building complex.
*       Provides the Durand residents with a
        Neighbourhood Park.


CONS
*       Cost of demolition.
*       Heritage “costs” incurred as a result of
        compromising all heritage attributes mentioned in
        “Reasons for Designation”.
*       Loss of City's leadership in role in community as
        steward and custodian of Hamilton's cultural
        heritage.
*       Annual cost for park maintenance.
*       Promotes amenity and perceived enhancement,
        retains some element of church through “ruins”




                                              St. Mark’s Anglican Church: Site Potential                                14
                                                                       Option 6
Pedestrian access to park from
Hunter Street with


                                                                       Neighbourhood
decorative/sculptural entrance marker
                                          HUNTER STREET

                                                                       Park
                                                                                 Pedestrian access to park
                                                                                 from intersection



                                                                                 Opportunity for vertical
Open grass                                                                       element/sculpture
area/potential
sculpture placement



                                                                                 Pedestrian access to park from Bay
                                                                                 Street with decorative/sculptural
                                                                                 entrance marker

                                                                                 Open grass area with low berm




                                                                                 Opportunity to retain remnant
                                                                                 element of church as ruins




                                                                    BAY STREET
          Secondary pedestrian
          access                        Existing Alley
                                                                                 Wrought iron fencing



                Not to Scale


                                                 St. Mark’s Anglican Church: Site Potential                           15
4.0     SUMMARY AND CONCLUSIONS
In summary, this report examined various development options
for the St. Mark’s Church property. The report has evaluated
the strengthens and weakness of 6 development options. The
development options were based on one of three themes:
1.      Adaptive re-use the existing Structure.
2.      Adaptive re-use of a portion of the existing
        structure with construction a new addition.
3.      Demolition and new construction.
The intent of the report was not to select a preferred
development option, rather to present CMT with a few
development options for their review. A major objective of this
report was to create development options that maintain the
character of the existing residential neighbourhood. Each
option looked at the following development issues:
*       Visibility
*       Pedestrian access
*       Traffic/vehicular movement
*       Parking
One of the constraints of the report is that none of the
development options were evaluated from a cost perspective,
due to timing constraints. Approximate cost allocations for
each development option can be determined.




                                               St. Mark’s Anglican Church: Site Potential   16

								
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