FACILITIES AND SERVICES STRATEGIC PLAN€¦ · Lauren Livingston, President Yost Grube Hall Architects Jim Kalvelage, Principal ... East Vancouver Indoor Sports Center 29 Partnership

F A C I L I T I E S A N D S E R V I C E S S T R A T E G I C P L A N

F A C I L I T I E S A N D S E R V I C E S S T R A T E G I C P L A N

A Summary Report

Developed for the

Vancouver-Clark Parks and Recreation ServicesCity of Vancouver, Washington

Prepared by:

The Sports Management GroupLauren Livingston, President

Yost Grube Hall ArchitectsJim Kalvelage, Principal

Project ManagersDave Miletich, Recreation Manager

Vicki Vanneman, Recreation Supervisor

July 1, 1999

City of Vancouver

Vernon E. Stoner, City ManagerMary Jo Briggs, Deputy City Manager

Larry J. Smith, Manager Parks and Recreation

Del Schleichert, Assistant ManagerParks and Recreation

Introduction 1Overview 2Strategic Initiatives 3Implementation Strategies 4A Core Systems Approach 7Facilities Inventory 8Proposed Recreational Facilities Plan 11

1 West Vancouver 12

Population & Characteristics 13Core Facilities

Marshall Community Center 14Luepke Senior Center 17

Support FacilitiesVancouver Tennis & Racquetball Center 19Hough Pool 19Hudson’s Bay High School Teen Center 20

Partnership OpportunitiesBagley Education and Community Center 21Propstra Pool at McLoughlin Middle School 23

2 East Vancouver 24

Population & Characteristics 25Core Facility

East Vancouver Community Center 26Support Facility

East Vancouver Indoor Sports Center 29Partnership Opportunities

Future Teen Centers and Gymnasium 30Evergreen Fisheries Park 30

V A N C O U V E R - C L A R K P A R K S & R E C R E A T I O N

Table of Contents

3 North Vancouver 31

Population & Characteristics 32Core Facility

North Vancouver Community Center 33Partnership Opportunities

Future Teen Centers and Gymnasium 35Cost Recovery Overview 36Implementation of Plan 39Acknowledgements 40Reference Documents 41


Table of Contents continued

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In the Spring of 1999, the City of Vancouver commissioned the Project Team of The Sports Management Group and Yost Grube Hall Architects to study the facilitiesand services throughout the City and the urban area, with an objective to betterserve the recreational needs of the community. The scope of services included a facilities inventory, needs assessment, program development, and projection of revenuepotential and estimated operation and maintenance costs. The Project Team reviewedstudies, building plans, surveys, master plans and other documents pertinent to thiseffort. The Team facilitated workshops with Vancouver-Clark Parks and RecreationStaff and met with community leaders to develop a clear understanding of the projectgoals, planning issues and recreational needs of the community. The Study Team alsomet with representatives of the Evergreen and Vancouver School districts to better understand their needs and to explore partnering opportunities.

The summary of these findings is presented in this report, along with recommendations for implementing a plan to address the recreational needs of the greater Vancouver area.


© The Sports Management Group 1999, All Rights Reserved. Reproduction in whole or in part is prohibited.

Introduction

The City of Vancouver has experienced phenomenal growth through annexation;nearly a 90% population increase just since 1996. The City has transitioned from a suburban community to an urban area, with the all the attendant growing pains.The City faces many challenges: the delivery of services to the greater urban area;transportation; and the revitalization of the Downtown. During a recent (February1999) City Council Retreat, the Council addressed the perception that the recentlyannexed areas are still being integrated into Vancouver City government. The Councilset a goal of promoting a feeling of belonging to, or pride, in the City of Vancouver.Creating information "nodes" and other forms of public communication outreach arekey Council objectives.

The delivery of recreational services and programs face the same pressures of urbangrowth. The City’s limited inventory of community facilities cannot service the needsof the current population. Now, the City has a unique opportunity to develop a masterplan that will address the short-term and long-range needs for community facilitieswithin the greater Vancouver area. The Master Plan can and should be responsive tothe broader City issues: (1) inclusion and equitable delivery of programs and servicesto all areas within the City; (2) transportation, and; (3) reducing City services’reliance on general funds.

As the City and Parks and Recreation Services considers several immediate facility opportunities, all plans implemented must address specific, attainable goals,and should focus the energies and resources of the Parks and Recreation Staff and the City.

The City can create a viable model for a city-widerecreational program that works in tandem with

other City services, relies on public and private partners when necessary or viable,and makes Vancouver an even more desirable place to live and work.

Overview


© The Sports Management Group 1999, All Rights Reserved. Reproduction in whole or in part is prohibited.2

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The Parks and Recreation Department developed the following goals to be met within a three to five year time frame.

Enhance parks, recreation and cultural services through quality management and effective communication.

Build and foster meaningful public and private partnerships in our community.

Through public process and dialogue, encourage and accommodate citizen participation in parks, recreation and cultural services.

Ensure equitable distribution of services throughout the community.

Provide comprehensive parks, recreation and cultural systems throughout the community.

Advocate responsible stewardship of natural resources.

Develop opportunities for parks, recreation and cultural services to be less dependent on general fund dollars.

Strategic Initiatives

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The Project Team developed clear Implementation Strategies that respond to the Parks and Recreation Services' seven goals. These Strategies serve as guidelinesfor actions that need to be taken in order for the goals to be met. The actions eachcarry specific facility, programmatic and cost/revenue implications that should be further analyzed. The final result will be a Master Plan that thoroughly explores financial feasibility, site development, new construction options, renovation plans,programming, operations, and maintenance.

• Develop staffing plans and physical space in locations that maximize the delivery of services to the community, facilitates communication among staffand allows effective management of programs and facilities.

• Create partnerships with health care providers for the delivery of communitywellness programs. Develop relationships and joint-use facilities to support and maximize partnership opportunities, increase services to the community,and generate new sources of revenue.

• Create partnerships with the corporate and business community to:- Strengthen relationship between the City and business.

- Increase services to the community through services provided by business partners.

- Support overall community health and wellness by providing programs for employers.

• Continue to develop financially viable shared use facilities with the Evergreenand Vancouver School Districts. Identified opportunities including Teen Centersat secondary schools, school-community gymnasiums and fields at MiddleSchools and after school programming at school sites. Explore opportunitiesfor meeting other community recreational needs through financially viable,shared use facilities.

Implementation Strategies



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Enhance parks, recreation and cultural services through quality managementand effective communication.

Build and foster meaningful public and private partnerships in our community.

• Work pro-actively with other City Services and public agencies to plan and develop community services in conjunction with community facility development. Opportunities include, but are not limited to, Community Policing,OP Services and Public Library. Increase service and convenience to publicthrough these City service partnerships.

• Conduct public workshops in each area of the City to educate, inform and encourage public dialogue. Through community workshops, assess community recreational and cultural needs, interest and support for facility and park development.

• Develop new, and remodel existing, facilities to meet all Americans withDisabilities Act (ADA) requirements and create a physical and social environment that encourages use by persons of all physical and mental abilities.

• Through the development of new or renovated facilities, substantially increasecommunity recreational opportunities and services throughout the community.

• Provide a “core” community facility conveniently located within a 3 to 5 mileradius of every area resident.

• Create a system of community “core” facilities in each service area of the City.

Implementation Strategies continued



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Through public process and dialogue, encourage and accommodate citizen participation in parks, recreation and cultural services.

Ensure equitable distribution of services throughout the community.

Provide comprehensive parks, recreation and cultural systems throughout the community.

• Through sensitive site planning and building design, preserve open space andpark land, protect mature trees, wetlands and habitats. Design landscape toincorporate and protect native plant species.

• Create outdoor recreation offerings designed to educate and foster greaterappreciation of the environment and ecology.

• Employ energy conserving design in new facilities, including passive solar techniques, natural daylighting, superior thermal insulation and efficient electrical and mechanical systems.

• Develop public-private partnerships which reduce cost to the City and/or generate new sources of revenue.

• Create core facilities that are designed to be efficiently operated and maintained. Through user fees, develop a revenue stream to offset 70% to 90% of program and facility operating costs.

• Develop criteria for evaluating shared use opportunities and agreements.Consideration to be given to cost-benefit, long term maintenance and depreciation costs, capacity of facilities and/or programs to achieveDepartmental objectives and operational subsidy. Evaluate and negotiate,if appropriate, existing agreements to reduce costs/liability to the City.

• Design core facilities to be multi-use and intergenerational, thereby reducing the need for special use facilities, such as lap pools and senior centers. Thisconcept for core facility design will reduce both capital and operational costs.

Implementation Strategies continued



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Advocate responsible stewardship of natural resources.

Develop opportunities for parks, recreation and cultural services to be lessdependent on general fund dollars.

Because the City of Vancouver covers 44.8 square miles, an area too great to be served by one community center, it makes sense to develop venues at different locations in order to conveniently provide services to the population. Whatever newfacilities are developed, and whatever existing facilities are renovated, every venueshould serve a master plan that addresses the Park and Recreation Services statedgoals, and meets the needs of citizens. After study and consideration of the existingrecreational facilities, the layout of the City, and demographic data, the Project Teamproposes a city-wide recreational system approach.

Three core areas of the Vancouver urban area have been identified: West, East,and North. Each geographical area has a radius of three miles. By putting a core recreational facility in the center of each area, the wider Vancouver population can be served. Other venues can augment programs at the corefacilities and serve specific interests of the community. Existing and proposed

facility offerings are reviewed on the next page, followed by a map showing core areas and location of each venue.

The Core Systems approach provides the opportunity for long-range planning which can also centralize city services within each core area. For instance, a shared use building or campus could contain a community center, police substation, andother social or City services. Various funding options open up

when community venues partner with other services.

The current decentralized approach to recreational facilities and services is heavily reliant on partnerships and external development.

Maintaining this approach has a lower cost-benefit ratio; is more costly to operate,cannot as effectively capture revenue and cannot provide the level of recreation activities and opportunities desired by the community. If Parks and RecreationServices is to reduce it’s dependence on general funds, which now exceed $2 millionannually, a new approach is required. The proposed core system approach doesrequire capital investment. However, the core facilities can recover 70-90% of program and facility operating costs, which could reduce the reliance on general funds and substantially increase the benefits to the community.

As referenced in the Implementation Strategies, the Core Systems Approach maximizes efficiencies by embracing a philosophy that provides conveniently located,multi-use and intergenerational facilities, thereby eliminating the need for special usefacilities such as lap pools and senior centers.

A Core Systems Approach



WEST VANCOUVER

Marshall Community CenterMarshall Community Center, located in Central Park, at 1009 E. McLoughlin,is owned and operated by the City of Vancouver. The Center was constructed in1965 and has served as the cornerstone of the recreation program over the past34 years. The Center’s well-loved pool is where many of Vancouver’s residents have learned to swim.

Luepke Senior CenterLuepke Senior Center, located in Central Park, adjacent to the Marshall Center, isowned and operated by the City of Vancouver. The Luepke Senior Center is a fullservice senior center that has over 100,000 participant uses of its enrichmentactivities each year. Luepke Center also provides the primary kitchen facilities to support the Vancouver-Clark Senior Nutrition and Activities Program (SNAP).

Bagley Education and Community CenterBagley Education and Community Center, located at 4100 Plomondon, a former junior high school, converted to a community center in 1986 through a joint venturebetween the Vancouver School District and the City of Vancouver. The BagleyCenter, which is centrally located, houses the majority of the City’s Recreation staffand administrative services. The School District owns the facility and intends toundertake a $5 million renovation and expansion through the generosity of thePropstra family.

Vancouver Tennis & Racquetball CenterVancouver Tennis and Racquetball Center, East 18th and Stapleton Road, is ownedby the City of Vancouver. This specialized center features nine indoor tennis courts,four racquetball courts and four outdoor lighted tennis courts. In addition to publicuse of the Center, four area high schools train in the Center and the District andState High School Tennis Tournament is held in the Center.

Facilities Inventory



WEST VANCOUVER continued

Hough Swimming PoolHough Swimming Pool, located at Hough Elementary School, 1801 Esther Street,is owned and operated by the City of Vancouver through its Parks and RecreationServices. This six lane indoor pool opened in October 1997 to provide aquatic programs for the Vancouver School District and the community. The pool has amoveable floor for altering depth. The project was made possible through a generousgift of Paul Christensen, who graduated from Hough Elementary some 50 years ago.

Hudson’s Bay High School Teen CenterThe new Teen Center was constructed on the Hudson’s Bay High School campus,1206 East Reserve, with funds provided by the City of Vancouver. Vancouver-ClarkParks and Recreation Services programs and staffs the Center. The Center provides teens with 2,000 sf of dedicated lounge and game room space. The Teen Center has access, at times, to the gymnasium, aerobics room, classrooms and weight room.

Propstra PoolThe Vancouver School District received a gift from the Propstra family for the development of an indoor aquatics facility to be constructed at McLoughlin MiddleSchool, in the Heights. The Propstra Pool will become the teaching and training poolfor the School District and will serve as a neighborhood swim center.

Facilities Inventory continued



EAST VANCOUVER

East Vancouver Community CenterThis proposed Center would offer an array of recreation and community opportunitiesto the 60,000 residents living in the area annexed into Vancouver in 1997, as wellas the other 47,000 residents within the 3-mile radius of the proposed Center bythe year 2004.

East Vancouver Indoor Sports CenterA privately developed indoor soccer center, located at 16311 NE 15th Street, servesas the home of Vancouver-Clark Parks and Recreation in East Vancouver. Eight Citystaff are housed in approximately 1,200 sf of the Center. The City leases the indoorfield to conduct City sponsored recreation programs during the weekdays, when thefacility is not in use by the owner/operator.

NORTH VANCOUVER

North Vancouver Community CenterThis proposed multi-faceted Community Center would serve the 77,500 residentswho will be living within the 3-mile radius of the proposed Center by the year 2004.The Center would feature a family activity pool, fitness center, aerobics/dance studio,community room, climbing wall, preschool classrooms and more.

Facilities Inventory continued



Proposed Recreational Facilities Plan



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1 West Vancouver

1 West Vancouver: Population & Characteristics



Projected Population for 2004 77,908

POPULATION BREAKDOWN

Children under 5 5,000

School Age (5 - 19) 14,503

Adults (20 - 44) 27,249

Adults (45 - 64) 19,150

65 and Over 12,005

Households with Children 10,410

CHARACTERISTICS

IncomeMedian Household Income $36,609

Educational Attainment (25 years of age and over)

High School Graduates 65%

Bachelors Degree + 10%

Graduate or Professional Degree 5%

MiscellaneousMedian Age 38

The Marshall Center is a tremendous community and recreation asset that should be preserved and enhanced. Marshall, the City’s first community center was constructed in 1965 when the City’s population was just under 37,000. Today, theMarshall Center serves a city-wide population of nearly 128,000 with 78,000of that population living within three miles of the Center. The Center’s location, inCentral Park and adjacent to Luepke Senior Center, contributes to the significance ofMarshall as a “core” facility. The cost to replace the Marshall Center would farexceed the cost to improve it. Renovation is consistent with the City’s operating principles of "stewardship" in caring for the assets entrusted to it. The Marshall andBagley Centers compliment each other and allow Parks and Recreation Services totarget specific users and uses at the two centers. The Marshall Community Center isnow in need of extensive renovation to upgrade interior finishes, improve mechanicalsystems, meet current seismic standards and most importantly, to improve accessibility and achieve compliance with the Americans with Disabilities Act (ADA).

The reward will be a vital and successful Center that will contribute substantially tothe Community for many more years.

A-1 Marshall Community Center



Note: Further study is required to determine costs for remodeling and expansion.

A-1 Marshall Community Center continued



GymnasiumFitness CenterFitness Assessment/Training RoomAerobics/Dance StudioArts & Crafts RoomMulti-Purpose Activity Room/ClassroomKitchenGame RoomChild Watch/Tot Activity Room25 Yard L-Shaped PoolRecreation Activity PoolPreschoolCenter Administration SpacesBuilding Support SpacesRecreation Staff Offices

Current Square Footage 31,000

Proposed Estimated Gross Square Footage 48,000

Cost Recovery Potential 70-80%(Operations and Maintenance)

PROPOSED PROGRAM/SPACE HIGHLIGHTS

16

Recommendations■ Commit to the renovation and expansion of Marshall Community

Center to bring it up to the standard of a core facility. Any expansion must preserve both park land and parking.

■ Design and programming considerations must be consistent withthe objective of maximizing the Center’s cost recovery potential.Recommendations include adding a Fitness Center, aquatic playfeatures and short term child watch to enhance revenues.

■ Undertake a planning study to identify capacity and constructioncost for the expansion and renovation. Develop phasing strategies, and identify sources of funding for each phasing option.



A-1 Marshall Community Center continued

The Luepke Senior Center’s adjacency to the Marshall Community Center providesexcellent shared use of the recreational and social spaces in Marshall. The shareduse of Marshall is both cost effective for the City, and essential, given the interestsand changing attitudes towards health and wellness by older adults. Marshall,however, requires renovation to better respond to the needs and interests of thegrowing senior population.

Luepke Senior Center is the largest site for the SNAP meals program. In addition to the meals served at the Center, the kitchen at Luepke serves as the primarykitchen for the preparation of meals delivered to other sites around the County and tothe homebound. The kitchen is now too small for the number of meals stored and prepared and relies on refrigeration and freezer storage at Bagley. Also, the SNAPstaff is housed at Bagley due to the space limitations at Luepke. As Bagley isremodeled, it does not make sense to maintain the SNAP storage and offices atBagley. It appears that an expansion of the kitchen at Luepke is possible, withoutintruding into the Park. There are efficiencies in operation and cost savings by consolidating SNAP services at Luepke.

A-1 Luepke Senior Center



SNAP OfficesKitchen Expansion

PROGRAM/SPACE HIGHLIGHTS

Current Square Footage 10,700

Proposed Estimated Gross Square Footage 12,200

Recommendations■ Build an addition to the Luepke Senior Center to enlarge the

Kitchen, accommodate SNAP Office relocation, provide freezerspace, and offer better service access for vehicles picking upmeals for delivery offsite.

■ No expansion of program space at Luepke Center.The recommended renovation and expansion of Marshall Community Center can provide the program space needed to better serve and/or expand Luepke programs. This shared-use is consistent with the City’s philosophy of emphasizing intergenerational programming.

■ Any addition to Luepke or Marshall should be accomplished with the goal of enhancing the courtyard and strengthening theconnection between the Luepke and Marshall centers.

A-1 Luepke Senior Center continued



B-1 Vancouver Tennis and Racquetball Center■ The Tennis and Racquetball Center is outside the purview of this study.

B-2 Hough PoolThis pool is located within 1 mile of the Marshall Community Center pool. Althougha very attractive facility, Hough Pool has problems associated with the building’s airhandling systems and repairs are necessary to: (1) ensure the structural integrity ofthe pool enclosure (natatorium); (2) increase patron comfort; and (3) maintain ahealthy environment for both patrons and staff. Within the established recreation system, Hough Pool is the primary site for the School District’s swim team trainingand instructional programs. This, however, will change with the opening of thePropstra Pool and the relocation of the District’s programs to the Propstra Pool.

Recommendations■ Negotiate terms of a financial agreement with the Vancouver

School District to create a more equitable distribution of theoperating subsidy and on-going maintenance and renewal costs.This agreement must address the financial implications of both the Hough Pool and the new Propstra Pool and, in particular,the impact of the latter on the recreation system. The aquaticscomponent of the recreation system is impacted by the addition of a third pool, within just three miles of the existing Marshall and Hough pools. Because the School District is changing theoriginal use understanding with the City by relocating theDistrict’s swim programs from Hough Pool to the new PropstraPool, the agreement must be negotiated based on operation ofboth pools.

■ Continue to work with the donor to address the HVAC and acoustical concerns associated with this pool. Financial responsibility for corrective measures should be assigned to the Hough Foundation.

Support Facilities



D-2 Hudson’s Bay High School Teen CenterThis is a partnership model that the City would like to pursue at other secondary school sites in both the Evergreen and Vancouver School Districts.

Recommendations■ No recommendations at this time.

Support Facilities continued



D-1 Bagley Education and Community Center

The Bagley Education and Community Center has been an important component within the current recreation program. Bagley serves its immediate community well,and with expansion and renovation, it could be an important satellite facility in thenew recreation system. However, because of its size, location, parking and site limitations, it cannot be a core facility within that system. The Bagley Center mission,as identified by the Vancouver School District and the City, could be served by the proposed space components.

Recommendations■ Include the following space components in the Center:

The estimated gross square footage is 65,000 gsf, with an estimated project cost of $7,000,000. The cost recoverypotential for operations and maintenance of the City facilities is projected to range between 50% to 60%.

■ Negotiate joint use agreement with the Vancouver School Districtthat includes development of the spaces needed by VancouverClark Recreation Services. A condition of the agreement shouldbe the equitable distribution of overhead and operating costs thatare not funded from user fees. Programs developed by the SchoolDistrict, exclusively for the School District, should be funded bythe School District. Programs developed by the City, exclusivelyfor the City should be funded by the City. Operating and/or capitalcosts, attributable to other partners secured by the SchoolDistrict, should not be an expense to the City.

Partnership Opportunities



The School District goals for Bagley Education andCommunity Center:

1. Support the Mission ofVancouver Public Schools

2.Develop community assets for children,youth and adult members of the community

3.Extend educational andrecreational opportunities

4. Promote collaboration amongcommunity partners

The City’s goals for the Bagley Education andCommunity Center:

Provide recreational opportunities for all ages,interests and ability levels

GymnasiumFieldhouseWalking/Jogging TrackAerobics/Dance StudioMulti-Use StudioRock Climbing WallLarge Multi-Purpose RoomKitchen/ClassroomSaturday Academy/Pre-SchoolChild Watch/Tot Activity Room

Fitness CenterFitness Assessment/

Training RoomFamily Resource RoomTeen Game Room/LoungeTech LabGame RoomCenter Administration SpacesBuilding Support SpacesRecreation Staff Offices

Recommendations■ Within the context of the recreational facility system as outlined

in this strategic plan, a pool at Bagley is not recommended. If theSchool District includes the pool, the City should not serve asthe pool operator. A pool and the related pool support facilitieswill: (1) require already limited building area away from what shouldbe the core facilities at Bagley; (2) take construction budget awayfrom more necessary program space; (3) add a fourth pool withinthree miles of Marshall Center; (4) require an operating subsidythat will be incurred annually for the life of the pool.

■ Another pool so close to Marshall, Hough and the new PropstraPool will be viewed as redundant. What makes more sense is to develop a very necessary family activity pool at MarshallCommunity Center. As stated in the Marshall Community Centerrecommendations, the lack of the family activity pool at Marshall hurts the City and the community both programmaticallyand financially.

■ Improve the efficiency of operations by relocating the SNAP Officeand staff to the Luepke Senior Center. Food storage that nowoccurs at Bagley, due to the deficiency of freezer space atLuepke, should be moved to Luepke Senior Center. This will freespace in Bagley for adaptive re-use for recreational purposes.

■ The central location of Bagley provides convenient city-wideaccess. Retain the majority of Recreation Services Offices at this location.

■ The City should invest $1 - 2 million for the development of special use recreation and community spaces and for RecreationServices offices. The City should make this investment only if theterms and conditions of the joint use agreement: (1) meet theCity’s programming and use needs; and (2) support the costrecovery objectives for this site.

Partnership Opportunities continued



E-1 Propstra Pool

The completion of the Propstra Pool, located in the Heights, will add another poolwithin three miles of the Marshall Pool and the Hough Pool.

Recommendations■ Careful consideration should be given to the financial viability

of this facility before the City undertakes any financial or programming responsibility for this pool. From a master planningperspective, the City’s and the community’s needs could be betterserved with the development of an activity pool or addition of playfeatures at the Marshall Community Center pool. As a conditionof considering participation in this project, the City should haveinput to the final design and space components.

■ Add aquatic play features including a waterslide(s) and a multi-use room, to be used for classes, meetings and children’sparty’s, adjacent to the play pool.

Partnership Opportunities continued



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2 East Vancouver

2 East Vancouver: Population & Characteristics






School Age (5 - 17) 25,796

Adults (18 - 44) 38,747

Adults (45 - 64) 24,954

65 and Over 8,318


CHARACTERISTICS



High School Graduates 64.5%



MiscellaneousMedian Age 34

In many communities, the recreation center is the central gathering place for its residents. Centers are designed to serve as community "living rooms" where peoplethroughout the community gather to participate in a wide range of social, cultural and recreational activities. The Center has something for everyone. New centers incorporate juice bars and casual seating areas to encourage families and neighborsto meet, play and to celebrate. They promote intergenerational mixing, bringingtogether citizens of all ages, from infants to older adults. The community centerreflects and manifests the quality of life that the City of Vancouver has expressed as its goal.

Many of East Vancouver’s newly annexed residents do not feel a "sense of community" or belonging. With over 400,000 projected annual visits, the Centercan promote a "sense of community" and civic pride. The proposed center has a largecommunity room where festivals, fairs and family or community celebrations can beheld. Siting the Center adjacent to the Haagen Park could create a "sense of place"in East Vancouver. The addition of other City services at this location or a CitizenService Center would create a "civic center" for area residents.

To serve the recreational needs of the over 105,000 residents expected to be livingin East Vancouver by the year 2004, new facilities are needed. Joint use of SchoolDistrict and/or private leased facilities cannot serve the demand. Joint use and partnerships, however, are necessary to supplement the core facility described belowand to better serve area residents.

A-2 East Vancouver Community Center





A-2 East Vancouver Community Center continued

PROPOSED PROGRAM/SPACE

GymnasiumFitness CenterFitness Assessment/Training RoomWalking/Jogging TrackAerobics/Dance StudioRock Climbing WallCommunity RoomKitchen/Demonstration ClassroomSenior LoungeSNAP Meal SiteSenior Resource RoomPantry (2)Multi-Purpose Activity/ClassroomSpecial Events Room (2)Child Watch/Tot Activity RoomRecreation Activity PoolLap PoolSpaPreschool Room A & BPreschool KitchenTeen Lounge/Game RoomBuilding Support SpacesCenter Administration Spaces

Estimated Gross Square Footage 87,0002001 Estimated Total Project Cost $19,679,000Cost Recovery Potential 81% to 98%(Operations and Maintenance)

Recommendations■ Seek administrative approval for the appointment of a citizen

Planning Committee and to retain a consultant team to work withthe Committee. The Committee’s charge should include developingrecommendations for the Council. Recommendations to include:East Vancouver community social and recreational needs and necessary facilities to serve those needs, financial feasibility andcost recovery potential, site development, project costs and funding strategies, conceptual plans and identification of communityissues related to such development. Conduct a Public Workshop togather and present information to the broader community.

■ Initiate discussions with potential governmental and private sectorpartners regarding development opportunities, funding sources andpotential benefits to the East Vancouver residents.

Site RecommendationsThe Haagen site, owned by the City of Vancouver, is an ideal location for the proposed Center. The 29 acre Park is centrally located with excellent vehicularaccess off of 136th Avenue. This is also an excellent site for a public services campus to serve a broad range of needs including Police, Public Works and Parks and Recreation. There could also be other governmental agencies to create a single destination, i.e. campus, for public services in East Vancouver.

Recommendations■ Haagen Park should be preserved for park uses and possibly the

Community Center. If one facility is built to house multiple Cityservices, careful consideration must be given to its impact on thepark and the community sensitivity to park land use. If a larger“civic center complex” is developed, it should be on the edge of thepark, and not in it. Undertake a master plan study of the PublicService Facility or Campus and if feasible and desired, acquire theadjacent land necessary for the campus development.



A-2 East Vancouver Community Center continued

C-1 East Vancouver Indoor Sports CenterAn excellent example of public/private partnership, the Indoor Sports Center is used by the Parks and Recreation to create a recreation "service center" in EastVancouver. Parks and Recreation staff members are on site and offer citywide registration at this location. Additionally, the City leases space from the facility tooffer programs on the indoor soccer field and in the classroom. There are, however,significant limitations to the times the facility is available and to the types of programs that can be offered. The opportunity to offset costs with program revenuesare also limited, which contributes to the Parks and Recreation Services need forincreased general fund support. Current annual expenditure for the City’s operation atthe Center is approximately $120,000.

Recommendations■ Maintain the Indoor Sports Center as a satellite facility. When

the East Vancouver Community Center is developed, the focus of thisrecreation satellite should be sports activity. The Indoor Sports Centeris adjacent to Pacific Park and its new ballfields will be a hub of bothindoor and outdoor team sports activity.

Support Facilities



Future Teen Centers and Gymnasium

Recommendations■ Enter into negotiation with Evergreen School District for joint

development of teen centers at agreed upon secondary school locations. The capital cost for this type of facility ranges from$400,000 to $600,000.

■ Explore with Evergreen School District, the opportunity to develop a second gymnasium or enlarging the planned gymnasium at the new middle school to be located at 192nd Street. Determine capitalcosts and seek funding source. Negotiate shared use agreement thatwould give the City scheduling control commensurate with the City’slevel of financial participation. The City’s share of the capital cost forenhanced gymnasium space ranges from $400,000 to $600,000.

Evergreen Fisheries ParkVancouver Parks and Recreation Services, in partnership with the Evergreen SchoolDistrict, Clark College, Clark Public Utilities, and the Washington Department of Fishand Wildlife, is working to establish a park and education center at the EvergreenFish Hatchery site. As the facilities are developed, Parks and Recreation Serviceswill offer outdoor recreation activities and cultural programs at this satellite facility.




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3 North Vancouver

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3 North Vancouver: Population & Characteristics

V A N C O U V E R - C L A R K F A C I L I T I E S S T U D Y

© 1999 6/2/99




School Age (5 - 17) 17,281

Adults (18 - 44) 26,502

Adults (45 - 64) 21,310

65 and Over 7,594


CHARACTERISTICS



High School Graduates 63%



MiscellaneousMedian Age 37.3

As the City continues annexation within its urban growth boundary, another 94,000 people could be added to the City’s population base. Like East Vancouver,additional facilities are needed to serve the social and recreational needs of the new population. This could also be the location of a Citizen Service Center, eitheradjacent to or within the Community Center. The Citizen Service Center, in additionto providing a convenient location for a broad range of City services, could contributeto a feeling of inclusion and create a “City” presence for its new residents. The creation of a third "core facility" in North Vancouver would provide the same opportunities as the proposed East Vancouver Center.

A-3 North Vancouver Community Center



GymnasiumFitness CenterFitness Assessment/Training RoomWalking/Jogging TrackAerobics/Dance StudioRock Climbing WallCommunity RoomKitchen/Demonstration ClassroomSenior LoungeSNAP Meal SiteSenior Resource RoomPantry (2)Multi-Purpose Activity/ClassroomSpecial Events Room (2)Child Watch/Tot Activity RoomRecreation Activity PoolLap PoolSpaPreschool Room A & BPreschool KitchenTeen Lounge/Game RoomBuilding Support SpacesCenter Administration Spaces

Estimated Gross Square Footage 87,0002006 Estimated Total Project Cost $22,814,000Cost Recovery Potential 81% to 98%(Operations and Maintenance)

PROPOSED PROGRAM/SPACE HIGHLIGHTS

Recommendations■ Park Planning Staff should begin identification of potential

sites for the future development of a community recreationalcenter in North Vancouver.

■ Explore funding options for the development of a core facility.Develop a funding strategy.

■ Continue exploring partnership opportunities with the SchoolDistricts within the North Vancouver area.

■ Initiate discussion between the City and County regarding the interest, viability and timing of entering into an inter-localagreement for the purpose of funding a major capital project.



A-3 North Vancouver Community Centercontinued

Future Teen Centers and Gymnasium

Recommendations■ Enter into negotiation with Evergreen and Vancouver School Districts

for joint development of teen centers at agreed upon secondary school locations. The capital cost for these type of facility ranges from$400,000 to $600,000.

■ Explore with both School Districts, the opportunity to develop a second gymnasium or enlarging a planned gymnasium at future middleschool sites. Determine capital costs and seek funding source.Negotiate shared use agreement that would give the City schedulingcontrol commensurate with the City’s level of financial participation. TheCity’s share of the capital cost for enhanced gymnasium space rangesfrom $400,000 to $600,000.




An important strategic initiative for Parks and Recreation Services is to reduce the dependence on General Fund dollars. Developing new or renovated facilities toexpand program offering is one means to achieving this objective. Some programs arelimited in enrollment or in the fees that can be charged or captured because of facilitylimitations. Addressing facility needs will result in less dependence on General Fund dollars.

The current fee-based recreation programs, not including aquatics, are designed to be 100% self-supporting of their direct costs, a goal which is currently being met.These programs include Preschool, Youth, Teen, Adult and Senior Enrichment activities, as well as Sports and Fitness programs for all ages and programsdesigned for citizens of disability.

Recommendations■ Preschool: The program philosophy must be re-addressed in

terms of the market to be served. Currently, the direct cost of this program is partially subsidized in an effort to make it more affordable. Most communities have made the choice thatpre-school should be self-supporting. Given the demand, this is easily achieved. The City should review and may wish to reconsider continuing to subsidize this program

■ Citizens of Disability: This program is currently recovering two-thirds of its direct operating expenses, based on the fact that it does require a higher ratio of instructors to participants.This level of subsidy seems appropriate and it is recommendedthat if an increase is necessary, that the cost recovery objectivenot exceed 75% of direct expense.

■ Adult Enrichment: This program has significant potential forgrowth and should be designed to be 100% self-supporting of its direct costs and its administrative staff costs. This could beachieved in a phased manner over the next two to three years.A commitment should be made to additional staffing for this program that is tied to revenue generation.

Cost Recovery Overview



FEE-BASED RECREATION PROGRAMS

Recommendations continued■ Adult Sports: Recommend increasing fees for adult sports

programs over the next two to three years to move the program to 100% self-supporting of its direct costs and administrative staff costs.

■ Fitness: Upgrade existing facilities and equipment, and increasefees over the next two years to achieve 100% cost recovery ofdirect and administrative expenses.

■ Senior Enrichment: Establish a cost recovery objective of not less than 50% for direct costs, up 18% from the current costrecovery of 32%. This objective could be achieved by offering more revenue-generating enrichment programs.

Aquatics■ The high cost of operations and maintenance associated with

pools render them less capable of being 100% self-supporting.The City’s aquatic programs are recovering 60% of their totalexpenses, which is a typical cost-recovery percentage in otherstandard lap pools throughout the United States. Recommendmaintaining cost recovery objectives at 60%.

■ To increase cost recovery for the aquatic program, the City should add play features to the existing pools. These could include a waterslide, spray fountains, other interactive play components. At Marshall Pool this could be a second tank withleisure features. The capital investment in these leisure featureswould not only generate additional annual revenue, but wouldrecover the costs of the capital upgrades within five to ten years.

■ The City should actively work to create additional partnershipopportunities, such as the Evergreen School District’s FourthGrade Swim Program. Partnerships with other school districtsand/or Clark College, Washington State University and other private organizations should be explored.

Cost Recovery Overview continued



Non Fee-Based Youth Recreation Programs■ Historically, the City of Vancouver has demonstrated a very

strong commitment to non fee-based recreation programs for its youth. During the past five years, this commitment of supporthas grown significantly with the addition of teen services, as well as a continued growth in its programs for elementary school-aged children.

Recommendations■ This is a very worthwhile program that meets the needs

of hundreds of youth and teens throughout the Vancouver community. These programs provide thousands of hours of recreational activities to youth in the community that need it most, and can least afford it. The $600,000 that is investedannually in this program is comparable to the cost to incarceratefourteen children for one year in juvenile detention. Recommendcontinuing General Fund support of this important program.

Cost Recovery Overview continued



In addition to the specific recommendations contained in the preceding pages, the following general recommendations and implementation actions are offered:

■ Explore non-traditional capital funding opportunities, includingpartnerships with hospitals and other health care providers,corporations and public-private joint ventures.

■ Continue to work with the Evergreen and Vancouver SchoolDistricts to strengthen relationships and develop joint use opportunities. Specifically, development of teen centers at selected secondary schools, using Hudson’s Bay Teen Center as a model and joint development of middle school gymnasiums,sized appropriately for after school youth and adult programming.

■ Create a managerial level position to develop funding for programsand capital projects. A successful "Innovative Funding Manager"can generate income in excess of the direct and indirect costs ofthis position. The Funding Manager should identify and developcapital funding strategies, opportunities and sources. Theseinclude securing grants, fundraising, creating financial partners and long term debt financing strategies. The funding required forthe facility improvements identified in this recreational system are in the tens of millions. If the City is committed to developingthe necessary funding, full time attention and effort must be given to the task. The City should expect immediate benefit fromthis position, however, the most significant contribution will comelong term in creating and securing the major funding needed for new facilities.

■ Consider adjusting the current non-resident fee policy to encourage increased participation and thereby improving costrecovery performance. One option would be to utilize the boundaries of the Vancouver and Evergreen School Districts indetermining resident and non-resident fees. Another option wouldbe to charge non-resident fees to only those participants livingoutside of Clark County.

Implementation of Plan



40

The project team gratefully acknowledges the contributions of the following individualswho offered valuable input to this process during a series of meetings and workshops.

Vancouver Clark Parks and Recreation

Acknowledgements


Evergreen School District

Sandy LeachMarcia Ross

Vancouver School District

Ellen BoggsTodd HorensteinJeanne MackDoug Spencer

Joyce BafusPam BelascoGeorge BerryAngie BrosiusJeremy BubnickSandy BurckhardBobbi CasanovaKim CederholmBecky ConnollyCarl CrawfordClaudia Dalton

Bob DownsKaren EverettJames FieldsDebbie GibbsBill GrantzConnie IrwinPatti Krebs

Bill LamkinJudy Noall

John NoonanKelly PunteneyMarcia Ross

Carol SchindlerStacey ScrogginsGladys SheldonLindia StantonSondra TubbsJohnie TuckerDave Weese

Teresa WilliamsonJana WilsonToni WisePatti Wood


Aquatic, Community & Police Facilities Demand SurveyRiley Research Associates, January 6, 1997

City of Vancouver Operating PrinciplesUndated

Demographic Data Source: CACIMay, 1999

Supplement to the 1993 Vancouver Urban AreaSwimming Pool Master Plan, April 1997The ORB Organization, Inc.

Vancouver School District Boundary GuideVancouver School District 1996-97

Vancouver Urban Growth Area Park System MapPlotted January 28, 1999

"Vision Statement, Education and Community Center"Vancouver Public School System, March 1, 1999

Vancouver-Clark Parks & RecreationFall 1998, Summer 1998, Winter 1998-99

Reference Documents

