TAMRMS#: B06
7.2
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Millennium Park Project Update
Presented by: Craig Cameron, Manager, Parks & Community Partnerships, Recreation & Parks
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RECOMMENDED MOTION(S)
recommendation
That the agenda report entitled “Millennium Park Project Update” dated April 16, 2024 be received as information.
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PURPOSE OF REPORT
This report provides an update on current and proposed actions related to Millennium Park.
BACKGROUND AND DISCUSSION
A presentation will be provided to Council on April 16th, that will address:
Project History and Direction
Discussions around the development of Millennium Park began in 2010 as part of the Downtown Area Redevelopment Plan (DARP), with concept planning being completed in 2018. This planning included four phases of public engagement that identified the following site values: Integrating Green, Community, Strategic Program, Scale + Comfort, Food + Engaging Edges.
In 2022, Millennium Park was identified in Council’s strategic plan as a priority under Downtown Revitalization. Through this prioritization, Council directed Administration to revisit the 2018 concept plan to also consider 1) increasing the amount of available open space, 2) improving views to the river, and 3) increasing connection to St. Albert Place and Lions Park. Council also asked Administration to bring back to Council concepts that (based on the new considerations) reflected “high”, “medium” and “low” levels of site development.
A biophysical assessment was completed as part of the concept update. The assessment concluded:
• The presence of two wetland areas in the forested area of the site, likely introduced by creation of the flood protection berm, that will require Water Act permitting for their removal and, if approved, compensation payment.
• In general, tree stands in wet areas are less healthy. The highest value and most significant trees are found in the upland area (northeast corner) of the park, which includes green alder, a species not commonly found in St. Albert.
• No federally or provincially protected wildlife species of concern were noted. Additional surveys for rare wildlife and vascular plant species (e.g. ferns, clubmosses etc.) will be done as part of future work.
• No presence of pileated woodpeckers was found as of October 2023; however, federal legislation requires protection of nesting cavities for a minimum of three years and reassessment of the area will be required prior to construction.
• This park is part of the regional Sturgeon River wildlife movement corridor and is therefore important as a steppingstone habitat and foraging area for wildlife. Study noted that wildlife movement is already significantly constrained by existing development to the east of Millennium Park along the river, so further development may exacerbate this pinch point.
Three concepts were presented to Council at the Standing Committee of the Whole meeting on December 12, 2023 (AR-23-484). At that time, Council directed Administration to advance work on the “high” development concept and to prepare a related borrowing bylaw. First reading of this borrowing bylaw occurred on January 23, 2024.
Concept Consideration
Environmental & Historic Resources
Tree and wetland preservation are recognized as important climate adaptation tools in reducing heat island effects and adapting to increased frequency and severity of storm events. The City’s 2022 Climate Adaptation Plan includes an action to seek to incorporate existing tree stands into parks, other public open spaces and private amenity spaces, where feasible and appropriate. Under the approved concept plan, tree removal will require an amendment to the MDP prior to construction. Further, trees in the upland area will be preserved and additional plantings will be incorporated into the park.
As noted above, the two wetland areas, likely introduced by the creation of the flood protection berm, will be impacted, requiring Water Act approval will be required prior to removal. Site grading will maintain the natural draining of water towards the river and Low Impact Development options will be explored to assist in water management.
Additional wildlife and plant studies will be conducted through detailed design and all applicable legislative requirements will be met.
Further investigation related to historical resources, potential tree assessment/valuation and hydraulic analysis and other work as recommended by project consultants will be completed as part of detailed design.
Community
Concept planning establishes project amenities, amenity sizes, and park layout. The concept will be refined through detailed design to determine how best to construct the concept with respect to more refined understanding of engineering, financial, environment and community impact factors.
Detailed design work includes engagement with key stakeholders including event holders (e.g. St. Albert Farmers Market, Run Wild), downtown businesses (e.g. Downtown Business Association) and adjacent leaseholders and landowners (e.g. St. Albert Seniors Association, Curling Club).
Engagement will focus on determining park design aspects that will:
• support events and community gatherings,
• reduce or mitigate impacts to neighbours, and
• ensure the space is designed accessibly and equitably.
While the project will change the feel and flow of existing spaces, there is no intention to alter current community partner leased areas. Administration will continue to engage through detailed design with the lease partners on opportunities within the public land outside the official leased area.
Administration has also begun discussions with Indigenous partners around project involvement.
Financial
The project cost is estimated at $16.6M. Administration will refine cost estimates as detailed design progresses. Opportunities for grants and other potential financial contributions (e.g. sponsorships) will be continually sought to offset taxpayer impacts.
Current Project Status and Next Steps
Administration has paused design work and public engagement pending decisions on further project funding by Council.
Subject to further funding decisions, the following major next steps are anticipated:
• Spring-Winter 2024: Detailed Design
• Spring - Fall: Additional onsite investigations
• Spring - Summer: Engagement with key stakeholders
• Spring - Winter: Engagement with Indigenous partners
• Fall 2024: Council consideration of MDP amendment
• Spring 2025: Construction
• Fall 2026: Park Opening
STAKEHOLDER COMMUNICATIONS OR ENGAGEMENT
Prior to the December 12, 2023 Standing Committee of the Whole presentation, Administration met with the Board of the St. Albert Seniors Association (SASA) to provide a project overview and update.
Administration has maintained contact with SASA and has supported limited community and media inquiries related to the project but has not engaged in any formal public engagement.
The project website was updated to address frequently asked questions related to the approved concept and outlines future project actions. Further engagement and communication are planned, subject to Council decision on the borrowing bylaw.
Outreach has begun with Indigenous partners to assess their interest in the project and identify areas of potential collaboration.
The Environmental Advisory Committee approved the following motion at their March 21, 2024 meeting:
That the Environmental Advisory Committee recommend to Council to consider that the conceptual design for the Millennium Park is contrary to the principles and objectives of the City's own Green Environment Strategy. Specifically, the Green Environment Strategy sets out goals for the protection of natural features, biodiversity, wetlands and urban forests.
Whereas the Strategy states that the community of St. Albert, which received designation as a "Tree City of the World" in 2021 and 2022, is committed to the preservation of our urban forest. The selected conceptual design for Millennium Park is in direct contradiction to these stated objectives because it requires the removal of 56% of the trees and most of the wetlands along the Sturgeon River that falls within the proposed park boundaries.
Now therefore, to ensure protection of the few natural areas remaining along the Sturgeon River within St. Albert the Environmental Advisory Committee respectfully recommends to Council, that Council not proceed with passage of the Borrowing Bylaw 3/2024 to provide the $20.8 million funding required for the Millennium Park.
IMPACTS OF RECOMMENDATION(S)
Financial:
The borrowing bylaw for this project is set at $20.8M. A borrowing bylaw sets the maximum amount that council may borrow for a project. At this time, Council has approved the project only to a maximum of $16.6M. Any project costs projected to be in excess of this amount will require approval by Council in an open meeting. An approved borrowing bylaw creates no obligation to borrow any or all of the amount. Actual borrowing on this project will be aligned with total project costs, cash flow needs and may be secured in smaller denominations as the project proceeds. This ensures that we only borrow what is needed, when it is needed. Given the planned design & construction timelines for this project it is anticipated that the borrowing will take place over at least 2 year which will spread the tax impact.
Further information on operating financial impacts will be brought forward through budget process for Council approval.
Compliance & Legal:
Outlined in the report above.
Program or Service:
None at this time.
Organizational:
None at this time.
Risks:
None at this time.
ALIGNMENT TO PRIORITIES IN COUNCIL’S STRATEGIC PLAN
Council Strategic Plan (2022-2025)
Strategic Priority: Foster a downtown where people come to live, gather, celebrate, shop, and do business.
Strategy: Promote our heritage, arts, and culture by providing a variety of community events and gathering places that build connections and bring people together downtown. This strategy includes advancing planning for the development of Millennium Park.
Corporate Business Plan (2022-2025)
Strategy: Promote our heritage, arts, and culture by providing a variety of community events and gathering places that build connections and bring people together downtown.
ALIGNMENT TO LEVELS OF SERVICE DELIVERY
Service: D.3.3 - Recreation Facility and Park Development
Description: Using identified and demonstrated community need to plan and construct new and redeveloped recreation facilities and park sites.
ALIGNMENT TO COUNCIL DIRECTION OR MANDATORY STATUTORY PROVISION
On January 23, 2024, Council passed the following motion:
BL-24-01
That the updated project charter DARP-005 Millennium Park Development attached to the agenda report entitled “Bylaw 3.2024 Millennium Park Borrowing Bylaw (1st Reading)” dated January 23, 2024 be approved.
On December 12, 2023, Standing Committee of the Whole directed Administration to proceed with Millennium Park Concept Plan High Development Option and prepare an associated borrowing bylaw for Council’s approval in Q1 2024.
On August 15, 2023, Council passed the following motion:
CM-23-36
That Administration prepare for Council’s consideration a Borrowing Bylaw to advance to completion, the total development and construction of Millennium Park. The Borrowing Bylaw to support a total development/construction cost to a maximum amount of $16.9M (2023 dollars) with the final amount of the Borrowing Bylaw to conform to current City of St. Albert standard business practice. The bylaw to be presented to Council upon Council’s approval for the design of Millennium Park.
On May 2, 2023, Council passed the following motion:
CM-23-15
That Administration provide Council with three alternative Millennium Park design options that are categorized based on the cost and scope as high/medium/low levels of development by Q4 2023, which incorporate as part of the design alternatives the feedback heard at the April 4, 2023 Special Committee of the Whole Meeting, and which permits the current scope of work in the Project Charter to continue. All alternatives should prioritize design elements that support event use and consider increasing the amount of open space, increasing view scape opportunities to the river and assessing flow between St. Albert Place, Millennium Park and Lions Park beyond what is suggested in the original concept plan.
IMPACTS OF ALTERNATIVES CONSIDERED
Financial:
None.
Compliance & Legal:
None.
Program or Service:
None.
Organizational:
None.
Risks:
None.
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Report Date: April 16, 2024
Author(s): Craig Cameron, Manager, Parks & Community Partnerships
Department: Recreation & Parks
Department Director: Daniele Podlubny
Managing Director: Diane Enger
Chief Administrative Officer: Bill Fletcher