Woodroffe, Hearst Way To Get Sprung Structures

This is a release from the City of Ottawa:

Destinataire Mayor and Members of Council File/N° de fichier:

From /

Expéditeur

Clara Freire, General Manager  Community and Social Services

Subject / Objet Newcomer Reception System Update Date: November 7, 2024

This memo responds to the direction from the July 10, 2024, Council meeting where staff  were asked to provide further review and analysis of lands, including federal parcels, as part  of a broader effort to respond to irregular migration and to create a sustainable and  permanent system of welcome, transitional housing and support services for migrants and  asylum seekers arriving in Ottawa. The memo outlines the extensive process undertaken to  identify land parcels for the development of a newcomer welcome and reception centre, as  well as an analysis of different building methodologies used to determine the most feasible  rapid-construction option. As a result of this extensive and phased analysis, the two sites  selected for construction of the tensile membrane (sprung) structures are first 1645  Woodroffe Avenue and as required 40 Hearst Way.

BACKGROUND

In the past two years, Ottawa has experienced an unprecedented inflow of asylum seekers  and refugee claimants into the city. For many of these individuals and families, the shelter  system is the first place of refuge before finding more permanent housing options. While  immigration falls within the federal government’s jurisdiction, the City of Ottawa, through the  Community and Social Services Department (CSSD) and the Strategics Initiatives  Department (SI), has been working to pursue medium- to long-term housing options to  respond to the demand for immediate and transitional housing and to alleviate pressure on  our local shelter system resulting from this irregular migration.

There are currently 330 beds at temporary emergency overflow centres, two of which are  operating out of City-owned recreation facilities, and approximately 600 single individuals  staying in shelters are newcomers, which represents 60 per cent of shelter users.

Council has directed staff to exit the operation of Physical Distancing-Emergency Overflow  Centres in City owned recreation facilities so that they can be returned to their intended

community use, while also continuing to ensure that everyone who needs access to a  shelter bed is able to acquire one. This was re-iterated through the Council approved 2022 Respite Services Sustainability Plan, the 2023 Integrated Transition to Housing Strategy and  subsequent 2024 Update, as well as a series of motions passed at the November 22, 2023  Council meeting.

For over a year, the City, through the Community and Social Services Department (CSSD), has been in discussions with Immigration, Refugee and Citizenship Canada (IRCC) to solicit  federal funding to create a permanent and sustainable newcomer welcome and reception  system in Ottawa to properly welcome and support asylum seekers and migrants. The  proposed newcomer reception system has been designed to provide a multi-pronged  approach to addressing the needs of newcomers by providing temporary accommodations in purpose-built reception and lodging centres that will include a soft landing with onsite  settlement supports, as well as housing search and employment related services, followed  by relocation to community-based transitional or permanent housing within 90 days of arrival  at the reception centre. The focus of the newcomer reception system is supporting single  adults to move to permanent housing and stability. Newcomer families are accommodated  throughout the family shelter system. The needs of families are different from those of single  adults and will be the subject of ongoing discussions with IRCC.

Working with community partners over the past year, the City has been able to increase  capacity in the permanent emergency shelter and transitional housing systems. Between  June 2023 and June 2024,164 newcomer beds in transitional housing (with individualized  case management) were added. Cornerstone Emergency Shelter for Women was  permanently relocated and increased its capacity to 150 permanent beds and 15 overflow  beds. This was made possible through capital and operating funding from both the federal  Interim Housing Assistance Program (IHAP) and City of Ottawa.

Despite actions taken to date, the inflow of asylum seekers and migrants continues to  overwhelm the emergency shelter system (including temporary overflow shelters operating  out of City-owned recreation facilities). This system was not designed to provide the  necessary support required to address the lived experience of many asylum seekers and  promote successful settlement in Ottawa.

NEWCOMER RECEPTION SYSTEM PROPOSAL

To build on Ottawa’s reputation as a welcoming community, in July 2024, the City of Ottawa  submitted a proposal to IRCC to seek capital and operating funding for the implementation  of a newcomer reception system. The proposal outlines the City’s intent to partner with newcomer serving community agencies and social service agencies to implement a  permanent and sustainable newcomer reception system that will provide tailored supports

for single asylum seekers and migrants to ensure they can successfully integrate into the  community. The newcomer reception system will support multidisciplinary and multi-agency interventions to ensure successful transitions to long-term settlement, thereby alleviating  pressure on the existing shelter system.

Key elements of the proposed newcomer reception system include:

• Temporary lodging in a newcomer reception centre for up to 90 days, with  onsite settlement services provided by community agencies with settlement and  immigration expertise. These services will include individualized case management  and assistance with things such as documentation, applications/hearings for status,  work permits, newcomer benefits, and housing.

• Connections to community and health resources, including system navigation for  social service supports, culturally relevant trauma support resources, connection to  education resources, transportation, and other referrals to religious or cultural  community support groups.

• Employment, interpretation and translation services, and language training provided onsite at the reception centre.

• Access to transitional housing and ongoing housing support. As the reception  centre is intended to be a short-term housing solution, newcomers who have not  found housing will be provided with access to temporary transitional housing with  ongoing services, to ensure newcomers can access and retain permanent housing.

Implementation of the newcomer reception system will be undertaken through a multi pronged approach that could be operational by the end of Q4 2025. In addition to the system  components outlined below, concurrent work is being done to create a service delivery  model that is co-designed with community partners that are experts in immigration and  settlement.

• Transitional Housing Facilities (currently underway): For the last couple of years,  staff in Housing and Homelessness Services and Housing Solutions and Investments  have reviewed over 200 public real estate listings for buildings having potential to be  used as temporary shelter and/or transitional housing for newcomers and have  undertaken countless targeted inquiries with community and public agency partners,  including school boards and other levels of government, resulting in the exploration  of over 60 facilities. In the end, the City is converting two facilities into transitional  housing for newcomers. The existing transitional housing for families at the Taggart  Family YMCA has been relocated to the Corkstown Transitional Housing Program

and the YMCA will be used to provide transitional housing for newcomers.  Additionally, the City has acquired a former convent building at 1754 St. Joseph  Boulevard that will be converted to transitional housing for newcomers. These two  facilities will initially be used to accommodate asylum seekers currently staying in the  City-operated overflow shelters in recreation facilities. Once the newcomer reception  system is operational, these sites will accommodate new placements coming from  the reception centre. These sites will be able to support up to 300 newcomers and  will help facilitate the decommissioning of overflow emergency shelters operating out  of City recreation facilities, which include the Heron Community Centre and the  Bernard-Grandmaître Arena.

Transitional Housing Scattered Homes (end of 2024/early 2025): the City intends  to facilitate the purchase of up to 20, 4 to 5-bedroom, homes throughout the  community to be used as transitional housing to support up to 200 people at a time.  During this phase, the City will ensure the sector has the necessary resources to  support flow within the system.

• Reception Centres (complete by end of 2025): the City will purchase and  construct semi-permanent structures for the purpose of establishing up to two  newcomer reception centres, as needed, that could be operational by Q4 2025. These newcomer reception centres are intended to provide a more dignified option  for newcomers who are currently sleeping on bunk beds in recreational facilities that  have not been designed for human habitation.

RECEPTION CENTRE SITE SELECTION

During the July 10, 2024, City Council discussion regarding the use of semi-permanent  structures, staff were directed to provide further details on the land/site selection process.  The process outlined below is presented in a linear and sequential form for clarity; however,  some steps were iterative with considerations being revisited to ensure the best options  were identified and prioritized.

City-owned lands were initially prioritized for this component of the newcomer reception  system because negotiating leases or acquiring private land can be time-consuming  processes that would cause delays to the project. Further, given consideration of the five per  cent cost sharing requirement for the Interim Housing Assistance Program the land could be  recognized as the City’s contribution in the proposal.

Phase 1

To initiate the review of potential property options, staff identified City-owned land parcels  across the city that met a minimum size requirement, have water and sewer infrastructure  available, and that were not initially recognized as being committed to other priority  initiatives like transit or affordable housing. In February 2024, Housing and Homelessness  Services staff were provided an initial list of 92 potential properties to be reviewed for  operational feasibility. The map below shows the locations of these 92 properties. Note,  some parcels of land listed are adjacent to each other.

Phase 2

During Phase 2, staff reviewed the list of 92 properties and assessed them for operational  feasibility based on the criteria outlined in the table below. As a result, 23 properties were  analyzed further for potential use, while the remaining properties were eliminated from  consideration. Appendix A includes the list of properties that were examined and removed  from consideration during Phase 2 of the site selection process.

Criteria
Scoring
Result of property

assessment
Availability of transit.
This was assessed by a  “yes” or “no”. Properties  were considered to have

proximity to transit if there  was a bus stop within 15  minutes walking distance  and a bus option is

scheduled at least once  every 45 minutes from 7 am  to 7 pm.
53% (49 properties) have  limited to no access to  transit.
Walkability to neighborhood  amenities (social services  programs, grocery stores,  drugstores, etc.).
This was assessed as high,  medium, or low. Properties  were considered to have  high walkability if an all purpose or grocery store  were within a 15-minute  walk; medium if within 30  minutes and low if more  than 30 minutes.
64% (59 properties) have  low walkability.
Level of compatibility

between the proposed  development and the

surrounding neighborhood’s context with respect to  density, built form, height,  and massing.
This was assessed by high,  medium, or low. Low would  indicate the property is not

conducive to a context sensitive development; medium would indicate a  moderate level of

compatibility; and high  would indicate no

compatibility issues.
13% (12 properties) had  low compatibility.

In addition to the above-noted criteria, the list of potential properties was further refined by  eliminating:

• Properties that are already committed to other projects (five properties or five per  cent of the initial list of properties)

• Properties where other factors like site configuration or features of the site (e.g. environmentally protected lands, lack of critical infrastructure, or the lot configuration)

made development unfeasible. Of the initial list, 22 per cent (20 properties) had other  factors which required them to be eliminated from consideration.

• It should also be noted that the initial list of options included properties that were  greater than 0.3 acres. As project requirements were refined, the minimum property  size was increased to 0.75 acres and 36 per cent (33 properties) did not meet the  refined minimum lot requirement.

Phase 3

The review, assessment, and elimination of properties in phase two resulted in three  properties being identified as being the most viable. The table below summarizes the top  three properties.

No
Property
Status / Rationale for Inclusion or Removal
1a
1671 St. Laurent  Boulevard

(Ward 18)
Considered a top three site. St. Laurent is adjacent to light  industrial uses and located on two major arterial roads.
1b
1661 St. Laurent  Boulevard

(Ward 18)
To be considered alongside 1671 St. Laurent Boulevard.
2
1005 &1045

Greenbank Road  (Ward 24)
Considered a top three site. Greenbank is bounded by the  transitway, rail line and 4-lane arterial road. It is ideal for a  temporary structure since the site cannot be redeveloped in  the long-term as there are plans for an LRT maintenance yard in the future on portions of the site.
3
2060 Lanthier

Drive

(Ward 19)
Considered a top three site. Lanthier is bounded by a  Loblaws and a Hydro substation. The area to the west of  the site is being developed and developments will be  connected via an extension of Vanguard Drive.

After identifying the top three sites, further due diligence was undertaken to confirm their  viability, including the standard internal and utility circulation process per the Disposal of  Real Property Policy, and it was determined that 2060 Lanthier Drive and 1671/1661 St Laurent Boulevard needed to be removed from the list, as outlined below.

2060 Lanthier Drive

The site at 2060 Lanthier Drive is adjacent to the future extension of Vanguard Drive, which  has not yet been completed. It was determined that constructing a semi-permanent structure on the site will push back the construction of the road and impact the planned residential  development to the west and south of 2060 Lanthier Drive. As such, the site has been

removed from consideration for the newcomer reception centre because it will impede the  planned Vanguard Road extension. Disposal of part of the property will facilitate cost sharing  of the construction of the road, which has the potential to service around 4,500 new homes  over the next ten years.

1671/1661 St-Laurent Boulevard

Upon further analysis of the sites at 1671 and 1661 St-Laurent Boulevard, multiple issues  were identified that impact the viability of the site for the newcomer reception centre. Due to  the lot configuration, engineering staff have indicated servicing for the site will be  challenging. Additionally, these parcels contribute to a sanitary sewer catchment that is  experiencing capacity issues and is associated with historical flooding. Lastly, the parcel at  1661 St-Laurent Boulevard is designated Industrial & Logistics (I&L) in the Official Plan. The  intent of the Industrial & Logistics designation is to protect and preserve these lands for  industrial type uses that cannot typically compete with rents of other uses in Hubs, Corridors  or Neighbourhoods designations, have potential adverse impacts on adjacent sensitive  uses, and require clustering of similar uses are located within I & L areas. Lands designated  as I&L are considered employment areas under the Provincial Policy Statement. If 1661 St Laurent Boulevard were to be developed alone, access would have to be provided across  1671 St-Laurent Boulevard to Innes Road, and it would have potential impacts on the  developability of the surrounding industrial land.

Phase 4

Following the July Council meeting, and as a result of the site evaluation processes outlined above and the elimination of all but one site, the identification of additional sites for  consideration and review was required. The following steps were taken to identify additional  properties for consideration:

• In collaboration with Transit Services, three OC Transpo Park & Ride sites were  identified.

• Through advocacy to the federal government and the National Capital  Commission (NCC), a list of NCC properties was provided to the City for review.  In collaboration with the NCC, one site was identified as being a viable option for a  newcomer reception centre.

• Staff reached out to the Ottawa Carleton District School Board (OCDSB), who  identified numerous sites, but none were considered viable in the short term.

• One additional vacant municipal site was also identified but did not meet the  Phase 2 selection criteria outlined above.

Of the sites identified in Phase 4 of the site selection process, four were prioritized based on  the criteria below. These criteria represent a refined analysis of operational considerations.  Four out of five sites listed in the table below received the same total score, in which case,  properties were prioritized based first on transit scores, then walkability, then  Neighbourhood Equity Index.

• Proximity to transit: 4 points for being located within a 10-minute walk of a Light Rail Transit (LRT) station; 3 points for being located within a 10-minute walk of a  Bus-Rapid Transit (BRT) or Transitway station; 2 points for being located within a  10-minute walk of a bus stop that is not an LRT or BRT station.

• Walkability to neighbourhood amenities: 3 points for being within a 0-10- minute walk of grocery/all-purpose store; 2 points for being within a 10-20-minute walk of a grocery/all-purpose store; 1 point for being within a 20–30-minute walk  of a grocery/all-purpose store.

• Neighbourhood Equity Index (a tool to assess and compare inequities at a  neighbourhood level on factors impacting wellbeing): 2 points for a Dark Green  (i.e. no equity concern) neighbourhood; 1 point for a Light Green (i.e. nominal  equity concern) neighbourhood; 0 points for Yellow or Red (i.e. possible and  strong equity concerns) neighbourhoods.

Information about the other sites identified during this phase but removed from consideration  can be found in Appendix A. In addition to the four sites prioritized based on the criteria  noted above, the parcel at 1005/1045 Greenbank Road (evaluated in phase 3) continues to  be considered a top five site. It is important to note that all five sites shortlisted for the  newcomer reception centre are not being made available indefinitely. The City is not  currently in a position to divest of these properties, and they are therefore not suitable for  any type of permanent housing development at this time. Staff will assess the need for the semi-permanent structures in five years to determine if they are still required to respond to  the need for additional shelter space, or if they can be repurposed for other municipal uses  or removed from the sites altogether.

No
Property
Status / Rationale for Inclusion or Removal
1
40 Hearst Way (part of Eagleson Park &  Ride, Ward 23)
The site is located west of Eagleson Road and the Eagleson BRT station and is located within approximately 5 km of a  future Stage 2 LRT station. The site currently serves as  overflow parking for the Eagleson Park & Ride.  Neighbourhood amenities, including a grocery store, are  within a 15-minute walk from the site. This is considered a  top five site.

2 3311 Woodroffe

The site is a vacant portion of the Nepean Woods Park &

Avenue (part of

Ride bounded by Woodroffe Avenue, the Transitway, and

Nepean Woods

Crestway Drive. The site is adjacent to a BRT station, is

Park & Ride, Ward

located within approximately 5 km of the Limebank LRT

24)

station and is within a short walking distance to

neighbourhood amenities, including a pharmacy and grocery

store. This is considered a top five site.
3
160 Lees Avenue  (Ward 17)
This is a vacant parcel located southeast of the Lees LRT  station. The site has been held for years for the future Alta  Vista Corridor outlined in the City’s Transportation Master

Plan. Preliminary functional design plans for the corridor show the eastern portion of the site will remain unencumbered by  the future corridor and is slated for future residential  development. From an operational perspective, the site is  ideal for a newcomer reception centre because of its proximity to an LRT station. This is considered a top five  site.
4
1645 Woodroffe  Avenue (NCC, Ward 9)
This site is a portion of the NCC owned parcel at 1645  Woodroffe Avenue, for which the City has an existing lease for an underutilized football field. The Nepean Sportsplex and  an OCDSB training facility are also located on this site. The  site has a somewhat low level of walkability but has access to bus rapid transit along Woodroffe Avenue and is less than 5  km from future Stage 2 LRT station. From an operational perspective, the co-location of the Nepean Sportsplex on site  could allow for additional programming space for the  newcomer reception centre. This is considered a top five  site.
5
1005/1045

Greenbank Road (Ward 24)
Carried forward from phase 3. This is considered a top five  site.

Phase 5: Site Analysis and Concept Development

Stantec Consulting Ltd. (Stantec) was retained by the City to undertake an independent

technical review of the five sites being considered to help inform site selection on the basis  of engineering feasibility and site function. The scope of the work completed by Stantec included preliminary servicing evaluation, site plan concept development, functional  servicing and grading, geotechnical and transportation planning review, and site civil opinion  of probable cost for options.

Stantec undertook a preliminary evaluation of each site, which included an environmental  review based on available environmental and geotechnical reports. Through this process,  Stantec recommended staff not proceed with further review of 160 Lees Avenue due to  significant environmental concerns identified. Additional evaluation of site conditions, risk  assessment and/or risk management measures would be required to support further  consideration of this site, which is not feasible given the timelines associated with the  development of the newcomer reception centre.

The preliminary evaluation of the other four sites demonstrated there are no environmental  concerns associated with 1645 Woodroffe Avenue and 3311 Woodroffe Avenue. The sites  at 40 Hearst Way and 1005/1045 Greenbank Road will require records of site condition  under Ontario Regulation 153/04 due to the change from a current (40 Hearst Way) and  historical (1045/1005 Greenbank Road) community land use to a more sensitive (residential) land use.

Based on the analysis and concept planning completed by Stantec, and staff evaluation  through phases 2-4 of the site selection process, the top two sites identified as being most  viable are identified below:

Site 1: 1645 Woodroffe Avenue (NCC-owned parcel)

The site at 1645 Woodroffe Avenue is a portion of the Nepean Sportsplex complex located  at Woodroffe Avenue and West Hunt Club Road. The portion of the site to be developed is  bounded by the Ottawa Carleton District School Board (OCDSB) Confederation Education  Centre to the west, West Hunt Club Road to the north, a wooded area to the east, and the

Nepean Sportsplex to the south. The parcel is currently owned by the NCC.

The technical evaluation of the site undertaken by Stantec indicates there are no significant  engineering, environmental, transportation, or planning issues with the site. The site has  been deemed suitable for the construction of a newcomer reception centre. In addition to the  technical analysis of the site, Stantec has also provided a pre-construction opinion of  probable costs for the engineering site works. A Class D estimate for 1645 Woodroffe  Avenue indicates the total cost is $3.5 million, which includes a 25 per cent contingency per  City requirements for a Class D estimate.

Engineering considerations

An analysis of available wastewater and water servicing for the site indicates there are no  downstream wastewater constraints for the public sewers and adequate water supply is  available through the private watermain on site. Additional analysis of the private sanitary  sewer capacity is required; however, has not been identified as a major concern. No issues  with stormwater management on site were identified, and the preliminary geotechnical  analysis has determined the underlying soils are suitable for the development.

Environmental considerations

The analysis undertaken by Stantec did not identify any major environmental concerns on  site.

Transportation considerations

Access to the site will be provided from the existing access from Woodroffe Avenue.  Sidewalks connect the site to the existing multi-use pathway running through the site, and to  West Hunt Club Road and Woodroffe Avenue. Access to bus rapid transit is available on  Woodroffe Avenue at the entrance to the site. Cycling facilities are accommodated onsite  and connect to the Woodroffe Avenue and West Hunt Club Road bike lanes and existing  multi-use pathways in the area.

Planning considerations

The site is currently zoned RI4 – Rural Institutional Zone, Subzone 4. Within the RI4 zone, a  shelter is a permitted use. As the site is owned by the NCC, the development is subject to  the Federal Land Use Design and Transaction Approval (FLUDTA) process.

Operational considerations

This site is served by frequent bus service along Woodroffe Avenue, which connects to the  Transitway in front of the site. It is strategically located within three kilometres of the City’s  Employment and Social Service Centre (West Office), and all-purpose stores are located  within the required walking radius per the evaluation criteria noted earlier in the memo.

The large size of the site will provide flexibility through the refined design phase of the  project to ensure all operational needs are met in ideal configurations and allows for  additional outdoor amenities space for clients. The co-location of the site with other  community facilities also presents the opportunity for programming synergies and is ideal for  future repurposing of the structure, if no longer needed, to serve community and/or  recreational functions.

The proposed structure is considered compatible with the surrounding density, built form,  height, and massing.

Site 2: 40 Hearst Way (part of Eagleson Park & Ride)

The site at 40 Hearst Way is located on the western side of the Eagleson Park & Ride lot in  Kanata. The site is bounded by Hearst Way to the south, a commercial plaza to the west,  the Highway 417 exit ramp to the north and Eagleson Drive and the remainder of the  Eagleson Park & Ride to the east.

The technical evaluation of the site indicates there are no significant engineering,  environmental, transportation, or planning issues with the site. The site has been deemed  suitable for the construction of a newcomer reception centre. In addition to the technical  analysis of the site, Stantec has also provided a pre-construction opinion of probable costs  for the engineering site works. A Class D estimate for 40 Hearst Way indicates the total cost  is $1.9 million, which includes a 25 per cent contingency per City requirements for a Class D  estimate.

Engineering considerations

An analysis of available wastewater and water servicing for the site indicates there are no  wastewater constraints and there is adequate municipal water supply to service the  proposed structure. No stormwater management issues were identified, as the site is  currently a largely impervious surface so there will be minimal change between the pre- and  post-development conditions on site. A preliminary geotechnical assessment has  determined the underlying soils are suitable for the proposed development.

Environmental considerations

The analysis undertaken by Stantec did not identify any major environmental concerns on  site. A Record of Site Condition may be required for the proposed development.

Transportation considerations

Vehicular access to the site is proposed to be provided via a new access from Hearst Way  and the existing accesses to the Park & Ride. Pedestrian access to the site can be provided  via Hearst Way and Eagleson Road. There is an existing pedestrian connection from the site  to the Eagleson transit station that will be maintained. While there are no specific cycling  facilities within the site nor along Eagleson Road, there is a paved shoulder along Hearst  Way and a path along Katimavik Road, which connects to Hearst Way. The park and ride lot  on the west side of Eagleson Road has not been fully used by transit customers for several  years, making it a feasible location for the temporary structure. With the remaining spaces in  this lot in addition to all the spaces in the main lot on the east side of Eagleson, there is a  great deal of room for OC Transpo to welcome additional customers. Customers will still  have access to the west side lot and to the frequent bus service provided from Eagleson to  the O-Train connection at Tunney’s Pasture.

Planning considerations

The site is currently zoned IL1[1438] – Light Industrial, Subzone 1, subject to urban  exception 1438. The proposed development can be designed to comply with the existing  performance standards within the IL1 zone. However, the existing zone for the site does not  include ‘shelter’ as a permitted use so a rezoning is required for the use. Further design  refinements may impact compliance with applicable performance standards, which would be  considered as part of a rezoning application. Section 4.2 of the City’s Official Plan includes a  policy that recognizes that emergency and transitional shelters are a key component of the

housing continuum, and through the Zoning By-law, emergency shelters and transitional  shelters shall be permitted in all urban designations and zones. The City’s new  comprehensive Zoning By-law will include provisions that align with this Official Plan policy.  The rezoning for this development will bring the zoning for the site in alignment with this  Official Plan policy.

Operational considerations

This site has access to Bus Rapid Transit and is within walking distance to community  amenities such as grocery stores. These are key operational requirements to complement  the supports to be provided to clients on site. The proposed structure is considered  compatible with the surrounding density, built form, height, and massing.

BUILDING METHOD ANALYSIS

Housing & Homelessness Services and the Realty Initiatives & Development unit have been  actively exploring private market opportunities for facilities that can be purchased and/or  leased to meet current system needs and have found that available options will not be  sufficient to meet the required demand in the necessary timelines. In addition to the new  development discussed in this memo, the City and partners are converting an office to  transitional housing at 230 Queen Street, and the City has purchased a former convent at  1754 St. Joseph Boulevard for transitional housing for newcomers.

The concept of using a semi-permanent structure for the reception centre component of the  newcomer reception system was first introduced in the Integrated Transition to Housing  Strategy, approved by Council in July 2023. Furthermore, on November 22, 2023, Council  approved a motion brought forward by the Emergency Shelter Crisis Taskforce directing  staff to “actively pursue the option of a Sprung Structure or other semi-permanent facility”.  An immediate solution is required to establish a reception centre and have it operational as  early as possible in 2025.

In early 2024, in response to Council’s direction to staff to pursue the development a semi permanent facility, staff undertook an assessment of rapid construction mechanisms  including federal mobile health centres, individual sleeping cabins, tensile membrane  structures (e.g. Sprung Structure), and modular complexes (similar to school portables).  This analysis found that tensile membrane structures are the best option to meet project  requirements. The initial project costs identified by staff were anticipated to be comparable  to the other rapid construction methods, while ongoing maintenance and lifecycle costs were anticipated to be lower. Additionally, the use of a tensile membrane structure will allow us to  meet project timelines, as it has been demonstrated to have the shortest construction  timelines. This information was described in a memo to Council dated July 9, 2024.

In August 2024, Colliers Project Leaders was retained to complete a further analysis  comparing tensile membrane structures (aka tensile fabric structures) to mass timber  construction (specifically the methodology used by Element 5), modular construction, and  traditional construction to determine differences in construction timelines and cost to  construct. The analysis provided by Colliers points to tensile membrane structures remaining  the preferred building mechanism given timelines, costs, programming requirements, and  future adaptability as service needs evolve or it is determined the structure can be moved or  converted for a different municipal use.

Mass timber versus tensile membrane structures

The comparison between tensile membrane structures and mass timber construction  showed that tensile membrane structures cost $30 per square foot less than mass timber,  which would equate to $900,000 for a 30,000 square foot building, which is the approximate  size of structure required based on programming requirements. As well, tensile membrane  structures can be constructed within 12 months versus 18 months for mass timber buildings.  Another important consideration is future adaptability of the structure. Tensile membrane  structures can be disassembled, reconfigured and repurposed, or relocated to another site,  while mass timber buildings are not typically designed and constructed to be disassembled  and relocated. A tensile membrane structure was constructed in two months at the Ottawa  Hospital Civic Campus to support the development of an Offload Medicine Transition Unit,  which demonstrates the rapid nature of this building mechanism. The report indicates that  there are no Ottawa-based examples of completed mass timber projects by Element 5.

Modular construction versus tensile membrane structures

The comparison between tensile membrane structures and modular construction showed  that tensile membrane structures cost around $15 per square foot up to $145 per square  foot less than modular, depending on the type of modular construction utilized. The Colliers  report provided an analysis of two types of modular construction: combination of precast  panels and heavy gauge steels studs, and a combination of structural steel and cold-formed  steel modular construction with concrete base. The timelines provided in the Colliers report  for both tensile membrane structures and modular building mechanisms are comparable at  around 12 months; however, local experience with modular builds has demonstrated a 12- month timeline for construction is unrealistic. One local modular project at 399-401 Bell  Street South took two years to construct. The interior space of tensile membrane structures  can be easily reconfigured in the future. The interior space configuration for modular  buildings needs to be determined in advance as interior layout is dependent on the size of  the modules, unless using a combination of traditional and modular construction, which  would increase project timelines. Both structure types can be disassembled and relocated;  however, this would need to be factored in during design of the modular building.

Based on the findings of this study, and previous analysis completed, the tensile membrane  structure remains the recommended building mechanism to deliver on operational needs,  project timelines and budgets.

NEXT STEPS

As per the findings outlined in this memo, staff will be proceeding with development of  tensile membrane structure first 1645 Woodroffe Avenue and followed by 40 Hearst Way,  beginning with one site and then advancing to the other, as needed.

In order to finalize the newcomer reception centre project, staff will:

• Advance the required planning applications and will work with the NCC to obtain  the necessary approvals for 1645 Woodroffe Avenue.

• Staff expect a zoning report for 40 Hearst Way to be brought forward to Planning  and Housing Committee and Council in January 2025.

• Site Plan Control applications for the two sites will be submitted in early 2025.

• Community notification and consultation will form part of the planning application  process to solicit feedback on site design. This consultation process does not  consider the end users, or the type of structure used for the proposed  development.

• Staff anticipate building permit applications for the structures will be submitted by  end of Q1 2025.

• Moving through the procurement process to issue a design-build contract.

Staff will work with the Ward Councillors for the sites identified herein to provide additional  information about the project and support any public engagement that the Ward Councillor  would like to advance.

Following the issuance of this memorandum with final site and building mechanisms  confirmed, Staff will seek a formalized letter of commitment for funding from IRCC the  Newcomer Reception System.

Based on high level project timelines currently available, the Newcomer Reception Centres  aim to be operational in Q4 2025 as needed. Work continues on the other identified  elements of the Newcomer Reception System, including the transition of single adult clients  to the YMCA, operationalization of 1754 St. Joseph as transitional housing, and the  procurement of 20 scattered homes to operate as transitional housing.

Sincerely,

Clara Freire

General Manager

Community and Social Services

CC. Wendy Stephanson, City Manager

Senior Leadership Team

Community and Social Services Department Leadership Team

APPENDIX A: List of Properties Removed from Consideration

Address Phase

Reason Site Removed from Consideration

Removed
1465 Trim Road  (Ward 1)
Phase 2
Removed from consideration as the site is subject to  area-wide study that is not yet complete and will impact  development timelines.
3413 St. Joseph  Boulevard

(Ward 1)
Phase 2
Removed from consideration as the site is subject to an  area-wide study that is not yet complete, which will  impact development timelines.
3593 St. Joseph  Boulevard

(Ward 1)
Phase 2
Removed from consideration as the site is subject to an  area-wide study that is not yet complete, which will  impact development timelines.
2548 Cleroux

Crescent (Ward 2)
Phase 2
Removed from consideration as the site is not large  enough.
261 Bren-Maur

Road (Ward 3)
Phase 2
Removed from consideration as the site has been  committed for another use.
2393 Longfields  Drive (Ward 3)
Phase 2
Removed from consideration as the lot is zoned open  space and there are concerns with time delays due to  proximity to a floodplain in that area.
251 Penfield Drive  (Ward 4)
Phase 2
Removed from consideration because the property has  been committed for affordable housing. OCHC plans to  build eight affordable units for seniors on the site to  complement the existing seniors’ housing at 231  Penfield Drive.
2 Cassidy Road  (Ward 8)
Phase 2
Removed from consideration as the property does not  meet the minimum size requirement.
1501 Woodroffe  Avenue (Ward 9)
Phase 2
Removed from consideration due to the lot configuration (long and narrow) constraining the developability of the  lot.
1770 Heatherington  Road (Ward 10)
Phase 2
Removed from consideration as the property has been  committed for affordable housing. A subdivision  application for the site is being reviewed by Planning,  Development and Building Services. Full build out of the site is expected to yield approximately 150 new units.
94 Sussex Drive  (Ward 12)
Phase 2
Removed from consideration as it is situated on an  island and the lot configuration (long and narrow)  constrains the developability of the lot.

Clifford Allen Park,

Phase 2 Removed from consideration due to proximity to high

eastern portion

voltage hydro lines.

(Ward 16)
185 Hawthorne  Avenue (Ward 17)
Phase 2
Removed from consideration as the property does not  meet the minimum size requirement.
1299 Old Innes  Road (Ward 18)
Phase 2
Removed from consideration due to proximity to heavy  industrial uses.
2086 Tenth Line  Road (Ward 19)
Phase 2
Removed from consideration due to the parcel being  held for future BRT and the lot is constrained by  overhead hydro wires.
2090 Frank Kenny  Road (Ward 19)
Phase 2
Removed from consideration as the site is zoned AG  and cannot be rezoned to permit a shelter. The site  does not meet minimum size requirements as well.
2132 Tenth Line  Road (Ward 19)
Phase 2
Removed from consideration due to the lot configuration (long and narrow road allowance).
5432A Innes Road (Ward 19)
Phase 2
Removed from consideration as the lot is zoned AG and cannot be rezoned to permit a shelter use.
650 Earl Armstrong  Road (Ward 22)
Phase 2
Removed from the list because the city plans to dispose of the property for a potential mixed-use development.  In accordance with the Affordable Housing Land and  Funding Policy.
1661/1671 St.

Laurent Boulevard  (Ward 18)
Phase 3
Removed per the rational in the memo.
2060 Lanthier Drive (Ward 19)
Phase 3
Removed per the rational in the memo.
3347 Fallowfield  Road (part of

Fallowfield Park &  Ride, Ward 24)
Phase 4
Property added in Phase 4. The site is part of the  Fallowfield Park & Ride located at the corner of  Fallowfield Road and Woodroffe Avenue. The  Fallowfield VIA Rail station shares a portion of the site.  While the site is located adjacent to a BRT station, it is  isolated on the edge of the neighbourhood and from an  operational perspective, is not an ideal site for a  newcomer reception centre.
2027 Walkley Road  (Ward 18)
Phase 4
This is a vacant parcel on Walkley Road that is zoned  for open space, with part of it zoned for residential use.  The site is being held for the future Alta Vista Corridor.
160 Lees

(Ward 17)
Phase 5
Property added in Phase 4. Removed per the rationale in the memo.

1005/1045

Phase 5 Existing and planned uses onsite limit the size of the

Greenbank Road

structure that can be installed and can therefore not

(Ward 24)

meet operational requirements as defined.
3311 Woodroffe  Avenue (Ward 24)
Phase 5
Property added in Phase 4. Removed due to potential limitations and project delays from shared access and  site use with OC Transpo, and mid-high estimates of  probable costs for on-site works.

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