Charles Street Terminal Visioning

This project supports the Region of Waterloo's strategic focus area(s):

The Charles Street Transit Terminal has been a foundational element of the downtown Kitchener community for more than 30 years.

Located at 15 Charles Street West, the property occupies a key location in downtown Kitchener with close proximity to the new King Victoria Transit Hub and ION LRT. With a footprint of 11,870 square meters (1.187 Ha / 2.94 Acres) in an Urban Growth Centre, this site is owned by the Region of Waterloo (88%) and the City of Kitchener (12%). The size and location of the property make the future use of this site an important discussion point for the community.

On November 5, 2019, the Region of Waterloo’s Planning and Works Committee authorized staff to initiate a visioning strategy for the future use of site.

Consulting with the community on the vision for future use(s) of the Charles Street Terminal site, in coordination with the City of Kitchener, presents an opportunity to advance four shared priorities:
1. Affordable housing
2. Climate action
3. Equity, diversity and inclusion
4. A thriving economy

Background + History

The Charles Street Terminal located in downtown Kitchener, Ontario is a settler development built on the Haldimand Tract and the traditional territory of the Attawonderonk, Haudenosaunee and Anishinaabe Peoples. The stewardship and contribution of First Nations, Métis and Inuit peoples is a living history and culture that the Region of Waterloo is committed to learning, celebrating and integrating.

1880s – 1950s
From 1882 until 1958, the Berlin Gas Commission operated a coal gasification plant on Gaukel Street between Charles and Joseph Streets. The majority of the facility was located on the west side of Gaukel Street but the main gas-holding tank was located on the Subject Site. The environmental contamination caused by the former coal gasification plant required significant remediation efforts led by the City of Kitchener on surrounding sites beginning in 2007. Regional staff led environmental assessments of 15 Charles St W in 2022.

1940s – 1980s
In 1949, expanding on their father’s downtown furniture business, Roy and Ross Bulla (Bulla Bros Ltd.) opened a department store on the site as the anchor for the Bullas Building. This mixed-use development was used for commercial, residential and innovative placemaking features, including a public fountain and two concrete and quartz statues created by artist Helen Waimel depicting sea goddesses riding dolphins, which are now on display at Centre in the Square. The brothers and their visionary development contributed to the eventual expansion of Charles Street from a laneway into the main urban corridor it is today.

1980s – 2000
The site was left vacant in 1987, and by 1988 local modernist architect John Lingwood created the design of the new Terminal building for the City of Kitchener's transit service which operational by 1992.

2000 – 2019
On January 1, 2000, ownership of the terminal transferred to the Region of Waterloo, the operator of Grand River Transit (GRT), when Kitchener Transit and Cambridge Transit merged. It became the GRT Transit Hub and Greyhound Bus Terminal.

2019 – 2022
In 2019 the completion and launch of GRT’s Light Trail Transit System shifts the centre of transit in Waterloo Region, ending operations of the Charles Street Bus Terminal. The central Victoria Park ION Station is located 130 meters from the terminal. From 2020-2022, the site was temporarily used by Grand River Hospital as a COVID Testing and Vaccination Centre.

2022
Filming site and subject of documentary, Recollections and Imaginings, created by Niara Van Gaalen, Bangishimo, Amy Smoke and Erik O’Neill.

Technical Considerations

MTE Consultants Inc. were engaged to complete both Environmental and Geotechnical analysis of the site in the summer of 2022. The work program commenced on site in September 2022, with final on site sampling and analysis completed in November 2022. Draft reports issued have identified environmental concerns in both soil and groundwater at the site. These results are not considered dissimilar to other urban infill sites with former industrial uses either on, or in proximity, but do verify the complexity of the redevelopment program, and the need for a Remediation Action Plan.

Environmental & Geotechnical Findings to date include:

• Shallow soil contamination related to lead and hydrocarbons, generally at depths of less than 1.5m below surface.
• Deeper soil contamination at one location attributed to waste from past demolition of buildings.
• Road salt impacts also present in soil throughout site.
• Excess soil management during future construction will need to involve disposal of contaminated soil to landfill.
• Groundwater contamination related to chlorinated solvents (no on site source
• identified) as well as localized metals and acid/base/neutral compounds.

Geotechnical Considerations

The MTE report provided recommendations related to site preparation, excavations, dewatering, foundation design, site servicing, and pavement structure. These recommendations will inform future design analysis. The final report will be provided to plan takers through the formal RFP process, to inform submissions.

Technical Study Work Plan

Technical design and landscape studies, along with financial modelling, disposition strategy, and market analysis will commence in the spring to help guide the path toward re-development. This work will occur concurrent to the ongoing Multi-stakeholder and community engagement work over the course of the spring and summer. Regional staff will bring back recommendations to Council at key milestones including the approach to environmental remediation, and disposition to the market in 2023.

Visioning the future use of Charles Street Terminal: a community-informed approach

Community-Inspired Engagement
Following community-led dialogue and visioning, Indigenous community leaders and co-founders of Land Back Camp Amy Smoke and Bangishimo Johnston presented a proposal to Regional Council on Nov. 21 2021 outlining the Terminal redevelopment as an opportunity to invest in an Indigenous community hub based on current Indigenous community space needs. In addition to the presentation at council, the group created a short film, Recollections and Imaginings, featuring stories from community members about their memories, experiences and future vision of the Charles Street Terminal.

The Region of Waterloo acknowledges and thanks the community leaders who continue to support and enable discussion on the future of the Charles Street Terminal. All community feedback that is shared with the Region of Waterloo will be considered in this visioning process.

Community-Wide Engagement
The Region of Waterloo’s Charles Street Terminal community engagement initiatives have received over 1500 community responses to date.

A community-wide survey launched in winter 2021 determined the project's four main guiding priorities: 1. affordable housing, 2. climate action, 3. equity, diversity and inclusion, and 4. a thriving economy. Community feedback also emphasised the importance of equity, and a desire for community-based, community-driven engagement opportunities.

On-the-ground outreach teams in summer 2022 engaged community members at festivals and in community spaces in Downtown Kitchener, along with an online survey. The summarized insights indicated the desire for affordable and supportive housing options; space for Indigenous, Black, racialized and 2SLGBTQ+ peoples groups; community space with indoor and outdoor options (with a majority of responses emphasizing need for an Indigenous Community Space); creation of a multi-use site with housing, healthcare services, retail and community space.

Upcoming Engagement Opportunities

Community Connectors
As described in the June 2022 report to Council, the Region of Waterloo has received applications for community representatives to work alongside staff to strengthen community involvement in the Charles Street Terminal visioning process, and create space for residents to help inform future engagements. These community connectors will join the Charles Street Terminal Working Group, and should represent a diverse mix of expertise and people with lived experiences in priority communities. An evaluation committee is currently reviewing applicants.

Community Facilitator
In 2023, also described in the June 2022 report to Council, the Region of Waterloo will onboard a community-based facilitator(s). This facilitator will help foster conversation with historically excluded communities (Indigenous, Black and racialized communities, and youth) to help guide the public consultation that will contribute to the recommendation made to Council(s) on the future of the site.

Visioning Labs & Community Roundtables
In depth Visioning Labs and Community Roundtables will be conducted throughout 2023 with identified groups representing Downtown Kitchener’s residents, businesses, arts & culture practitioners and community leaders.

Decision Making Process

Staff will bring forward a recommendation to both Regional and City council for further direction in 2023. Technical and environmental studies, community engagement findings, stakeholder interviews and financial modeling will inform the recommendation – with guidance provided by the Charles Street Terminal Working Group (consisting of Region and City of Kitchener planners, senior leadership, Equity, Diversity and Inclusion change-makers, and Community Connector members).