ADMINISTRATIVE REPORT
Date: April 23, 1997
Dept. File No.: 589 157
CC File No.: 5653-1
TO: Vancouver City Council
FROM: General Manager of Engineering Services, in consultation with
the Manager of Real Estate Services
SUBJECT: Woodwards Parkades - Structural and Seismic Upgrading and
Commercial Development
RECOMMENDATION
A. THAT Council authorize $150,000 of funds to retain a
consultant to review and evaluate seismic and structural
upgrading of the Woodwards parkades.The consultant shall
prepare preliminary plans and estimates for the improvements
and staff will report back for approval of the design and
project budget. Funds to be provided by the Parking Sites
Reserve.
B. THAT Council authorize $50,000 of funds to retain a consultant
to prepare conceptual plans and estimates for retail and
commercial development in the Woodwards parkades. Staff will
report back for approval of the design and project budget.
Funds for this work would be provided from the Parking Sites
Reserve.
COUNCIL POLICY
The City reinvests off-street parking revenue, held in the parking site
reserve, to develop parking resources where needed, particularly in the
Central Area, and for the support of Heritage areas.
On July 25, 1995, Council approved the In Camera report, recommending
the purchase of the Woodwards Parkades - 125 West Cordova Street and
130-160 Water Street. Council also approved a recommendation to pursue
structural and seismic upgrading work, then estimated to cost
approximately $3,000,000 to $4,500,000.
PURPOSE
The purpose of this report is to retain consultants to determine the
seismic and structural upgrading needs of the Woodwards Parkades, and to
design a reconfiguration of the retail area and the Water Street facade.
BACKGROUND
The Woodwards parkades consist of two interconnected parkades which
front onto Water Street and Cordova Street respectively. The Cordova
Street parkade was built in 1957 with 800 parking spaces, and the Water
Street parkade was built in 1971 with 550 parking spaces. There are
also a number of ground level commercial retail units on Water Street,
which form part of the Water Street parkade. The two Woodwards parkades
require major structural and seismic upgrades to extend the lifespan of
the deteriorating structures. The parkades, which provide the majority
of the parking for Gastown, were acquired by the City to maintain the
parking supply which supports the economic well-being of Gastown. In
addition, the parkades are presently viable parking operations with
future growth potential.
DISCUSSION
The parkades were purchased on an "as-is" basis with the recognition
that structural repairs and seismic upgrading were required. In
addition, other improvements are required to make the parkades more
attractive and functional. In the Council report for the Woodwards
purchase, very preliminary estimates indicated that the cost of
upgrading could range from $3.0 million to $4.5 million. This cost was
factored into the purchase price and was considered as part of the
overall acquisition costs of these properties. In undertaking these
substantial upgrading works, it is appropriate to investigate the
potential of developing additional uses for these sites, including
retail and commercial uses which could provide some offsetting revenues.
This report recommends that a consultant be hired to evaluate the
upgrading needs of the parkade, and to evaluate the development
potential of the parkade sites. The consultant would review the
following areas of improvement in consultation with Engineering Services
and Real Estate:
1. Seismic and Structural Upgrading
2. Retail and Commercial Development
1. Seismic and Structural Upgrading
The consultant will evaluate the seismic and structural upgrading for
the parkades, and develop preliminary plans and estimates for repairs
and improvements.
Seismic Upgrading
The Woodwards parkades have been identified as seismically deficient.
The parkades were designed to meet building codes at the time of
construction, but do not meet current earthquake standards. Parkades
can be particularly vulnerable under earthquake loading because of their
open design. It is recommended that both parkades be seismically
upgraded, which may include the installation of shear walls at all
levels, and strengthening of the end walls. The consultant will review
options for implementing these shear walls in conjunction with any
commercial development, and possibly integrating them with any street
facade renovations. The areas of seismic weakness are to be identified
by the consultant and recommendations for retrofitting and strengthening
are to be made.
Structural Lifespan Improvements:
The two parkades are reinforced concrete structures which are prone to
deterioration when exposed to water and, especially, when exposed to
salt. These salts penetrate the concrete and eventually reach and
corrode the reinforcing steel, causing the concrete to separate or
"delaminate". As the top surface of the concrete begins to spall, the
reinforcing steel is directly exposed to the salt water which
accelerates the corrosion process. If this process is left unchecked,
the structure's load carrying capacity can be reduced to such a level
that the parkade is no longer safe to occupy.
New building code provisions recognize this problem and require
waterproof membranes for new parkades and the City's most recent
parkades, Yaletown, and the two Bentall joint venture parking facilities
have membranes. A membrane was also recently installed in the Pacific
Centre parkade.
Both parkades require structural upgrading. Large portions of the
concrete surfaces are delaminating and repairs to the concrete and the
installation of a waterproof membrane is required to extend the
parkades' lifespan. The guard rail supports at the edges of the Cordova
parkade are also in disrepair and require attention. The consultant is
to review all areas of structural deterioration in the parkades and
advise mitigative measures to correct them.
2. Retail and Commercial Development
There is potential for retail and commercial development in the Cordova
and Water Street parkades. The development of the parkades with the
mixed uses of retail and office space would further contribute to the
economic well-being of Gastown by increasing business and pedestrian
activity on Cordova and Water Streets.
Retail and commercial development would also result in generating more
parking revenues for the parkade, and allow for restructuring
pedestrian access to the parkades. The access to the parkades is
currently structured for the Woodwards building, and this development
would allow the realignment of elevators and pedestrian access with a
focus on Gastown. The additional pedestrian activity would also
increase the general level of security.
The review would include:
- Reorganization of Water Street Retail: There are currently 14
retail units totalling 11,000 sq. feet of retail space on the Water
Street grade level. Approximately half of these units are located
in the interior mini mall along the eastern end of the parkade. The
consultant would review restructuring and enlarging the units with
a focus on Water Street.
- Water Street Commercial Development and Facade Improvements:
The main structure of the Water Street parkade is set back
approximately 16 feet from the property line. There is an
opportunity to develop commercial space in this area above the
existing retail space. This commercial space may be desirable with
north-facing views and direct access to parking. In addition,
there is the opportunity to upgrade the facade of the Water Street
frontage to restore some character to this stretch of Gastown.
- Relocation of the Parkade Elevator: There is a need to relocate
the Water Street parkade elevators from the current location at the
back of the mini-mall near the lane. The current location is
awkward, inconvenient, and often inaccessible due to the closures
of the mini mall. The relocation of the elevator to the Water
Street frontage will significantly improve access to and from the
parkade.
- Cordova Street Retail Development: It is desirable to give Cordova
Street a significant increase in pedestrian presence and activity
through ground-level commercial use. The consultant will
investigate the design opportunities for ground level commercial
use for the Cordova Street parkade and develop preliminary plans.
The consultant would also develop conceptual design plans and estimates
for these developments. Initial proforma analysis conducted by Real
Estate Services indicates that retail and commercial development is
economically viable. The designs, the economic analysis, and any
recommendation to pursue these opportunities would then be reported back
to Council. At that time, the existing and proposed retail components
of the parkade will be transferred into the PEF (General) and the PEF
(General) will reimburse the Parking Sites Reserve for this commercial
component.
FINANCIAL IMPLICATIONS
The consultants are to be retained to develop preliminary plans and
cost estimates for the upgrades and improvements to the Woodwards
Parkade. Funding for this work will be provided from the Parking Sites
Reserve, as previously approved by Council.
- Funding of $150,000 is required for the preliminary design and
estimates of the seismic and structural upgrades.
- Funding of $50,000 is required for the review of the retail and
commercial areas, existing and potential.
Preliminary rough estimates for the seismic and structural upgrading
work ranged from $3,000,000 to $4,500,000. Upon completion of the
preliminary plans and estimates, a project budget for the required work
will be reported back to Council.
The estimated cost for retail or commercial development, along with the
conceptual plans and the financing plan, will be reported back to
Council.
CONCLUSION
The purchase of the Woodwards parkades was approved by Council in
recognition that the City would have future costs associated with
upgrading work for the parkades after the purchase, in structural
repairs and improvements. This report is requesting funding to retain a
consultant to prepare preliminary designs and estimates for the seismic
and structural upgrading and for commercial and retail developments.
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