Minutes - Standing Policy Committee on Protection and Community Services - October 14, 2004 REPORTS

Transcription

1 Minutes - Standing Policy Committee on Protection and Community Services - October 14, 2004 REPORTS Minute No. 133 Policy on Protective Head Gear in City-Owned Arenas File PR-2.1 STANDING COMMITTEE RECOMMENDATION: The Standing Policy Committee on Protection and Community Services concurred in the administrative recommendation and received the report as information. 1

2 Minutes - Standing Policy Committee on Protection and Community Services - October 14, 2004 DECISION MAKING HISTORY: Moved by Councillor Smith, That the administrative recommendation be concurred in. Carried Councillor Angus asked to be recorded as having voted against the above motion, in accordance with Rule 50.7 of the Procedure By-law. STANDING COMMITTEE RECOMMENDATION: On February 10, 2003, the Standing Policy Committee on Protection and Community Services requested that the Administration work in partnership with the General Council of Winnipeg Community Centres (GCWCC) to develop and recommend a policy regarding safety regulations for public skating and associated uses at all City owned indoor arenas for consideration by the Standing Policy Committee on Protection and Community Services. 2

3 ADMINISTRATIVE REPORT RE: Policy on Protective Head Gear in City-Owned Arenas FOR SUBMISSION TO: Standing Policy Committee on Protection and Community Services ORIGINAL REPORT SIGNED BY: Ursula Stelman, Director Community Services Department REPORT DATE: October 7, 2004 RECOMMENDATION(S): That this report be received as information. REPORT SUMMARY: Key Issues: The Standing Policy Committee on Protection and Community Services requested that the Administration develop a policy on safety regulations for protective head gear (use of helmets) for public skating and associated uses at all City-owned indoor arenas. The Community Services Department is strengthening the current safety regulations for cityowned arenas, effective November 1, 2004, requiring that: at City-owned arenas, all participants under 18 years of age will be required to supply and utilize protective head gear (helmets), with the exception of participants in figure skating beyond the introductory and basic levels, within the arenas. In preparation for the implementation of the new safety regulation on November 1 st, the Community Services Department is implementing an educational campaign in October to advise the public and all current users of the new requirement. The regulations would apply to indoor ice arenas only, although related public education would potentially reach users of outdoor skating surfaces as well. This regulation is currently in place for the Learn to Skate program. For public skating, it would be enforced through on-ice supervision (skate patrols). For organized sport associations, the recognized officials and coaches within the sport association are responsible for enforcing the sport s guideline and procedures. For Casual/Contract Users, the arena attendants are responsible for enforcing the related guidelines and procedures for groups not governed by a recognized sport body. Public education for the required helmet use would require an upgrading of all signage in City-owned arenas and the distribution of flyers/posters. The message would be communicated on the City of Winnipeg website, in use agreements, the leisure guide, and registration letters. 3

4 With the implementation of the regulation regarding the use of head gear (helmets), there may be some criticism that individuals without the financial means to purchase a helmet will be unable to participate in activities at the indoor arenas. There may be additional financial implications for City-owned community centres or community group operated arenas that currently do not provide on-ice supervision for public skating times. Implications of the Recommendation(s): General implications: None For the organization overall &/or for other departments x For the community and/or organizations external to the City Involves a multi-year contract Comment(s): -All participants under 18 years of age will be required to supply and utilize protective head gear (helmets), with the exception of participants in figure skating beyond the introductory and basic levels. Community centre and community-operated arenas will need to hire supervisory staff, if not already provided, to ensure regulations are followed. Policy implications: x No Yes Comment(s): Environmental implications: x No Yes Comment(s): Human Resources implications: x No Yes Comment(s): Financial implications: x Within approved current and/or capital budget Current and/or capital budget adjustment required Comment(s): An additional expenditure in the initial amount of $6,900 would be required for communications (signage, printed materials) regarding the regulations. These initial and future costs would be absorbed in the Community Development and Recreation Services Division s budget. 4

5 REASON FOR THE REPORT: On February 10, 2003, the Standing Policy Committee on Protection and Community Services passed a motion that the Administration work in partnership with the General Council of Winnipeg Community Centres (GCWCC) to develop and recommend a policy regarding safety regulations for public skating and associated uses at all City-owned indoor arenas for consideration by the Standing Policy Committee on Protection and Community Services. HISTORY: In January 2003, a child in rural Manitoba died due to an unfortunate accident that took place during public skating at an indoor arena. The child was not wearing any protective head gear at the time of the accident. Due to the increased public attention to the matter of safety in arenas, the Community Services Department was asked to review the regulations currently in place regarding use of helmets in City arenas. When the Standing Policy Committee on Protection and Community Services was informed that no consistent regulations were in place requiring the use of protective head gear during public skating, the Standing Policy Committee on Protection and Community Services put forth and approved a motion for the development of a policy on February 10, DISCUSSION: Background As directed by the Standing Policy Committee on Protection and Community Services, the Community Services Department has worked with the General Council of Winnipeg Community Centres in the review of safety regulations regarding public skating and associated uses at indoor ice arenas. Input was also received from the Public Works Department, Legal Services and the Risk Management Branch. The Community Services Department currently requires that all participants in Learn to Skate programs wear helmets and gloves/mitts (with the exception of Figure Skating above the introductory and basic levels). The use of helmets at City operated public skating sessions is strongly recommended for children but is not mandatory. Survey (see Appendix 1) A survey was conducted regarding skating safety procedures and more specifically, rules and regulations regarding use of head gear (helmets) by patrons at arenas. In addition to the City operated arenas, the survey included City arenas contracted to community groups, community centre operated arenas, and other local privately operated arenas, five rural Manitoba municipalities and six other Canadian cities. 5

6 Key Findings: 1) None of the arenas and municipalities surveyed has a Council adopted policy regarding the use of helmets in their arenas. 2) 38% of respondents require that helmets be worn for public skating and 61% require them for learn to skate programs. The age at which helmets are required varies from under 12 to under 18 years of age. None of the arenas require adult participants in these activities to wear helmets. 3) 48% have rules requiring outside rental groups to wear helmets and protective equipment. 4) 81% of the jurisdictions utilize skate patrols at public skating to supervise participants, but the patrol to participant ratio varies from 1:25 to 1:100. 5) The content of safety messages communicated to arena users is similar across the jurisdictions, with the amount and method of communication varying. 6) None of the surveyed jurisdictions could recall a fatality in their arenas with the exception of those caused by heart attacks. Regulations The administration of the Community Services Department has established and enforces many rules and regulations for participants at recreation facilities and programs. These regulations have been established in response to, or in anticipation of, situations that affect the safety and enjoyment of participants. The Community Services Department is strengthening the current safety regulations for cityowned arenas (under the equipment section) effective November 1, The regulations will be amended to require that: at City-owned arenas, all participants under 18 years of age will be required to supply and utilize protective head gear (helmets), with the exception of participants in figure skating beyond the introductory and basic levels, within the arenas. This additional regulation would be enforced through on-ice supervision at public skating. Public education for the required helmet use would require an upgrading of all signage in Cityowned arenas and the distribution of flyers/posters. In order to develop safety regulations in City-owned arenas consideration must be given to a number of factors: 1) Operation of the arenas 3 arenas are contracted out to community groups, 12 arenas are operated by community centres, and 15 arenas are operated by the City of Winnipeg. There is a need to ensure consistent approaches in regard to safety procedures that can be applied within the different operations of the arenas. 2) Ice usage - the ice is rented to a wide variety of groups from highly organized sports to casual one time users; the organized sport groups have regulations in place regarding protective equipment while the casual users would not have any governing regulations. 3) Enforcement of the regulations in order for the regulations to be effective it is necessary to be able to enforce them as necessary; at programs operated by the City (i.e. learn to skate; public skating) the Community Services Department have staff who can enforce the regulations; when the ice is rented to external groups enforcement would fall to arena attendants or the organized sport group s officials 6

7 4) Public Education the public must be informed not only of the implementation of the regulations and how it effects their involvement but also of the underlying concepts of safety in arenas Safety Regulations for City-Owned Arenas are attached and the proposed amendment is incorporated under equipment. (Appendix 2) It should be noted that these regulations only apply to indoor ice arenas and are not intended to govern the use of outdoor skating rinks. Outdoor skating rinks are not currently supervised on an ongoing basis. Given the easy access to the outdoor facilities the City cannot assume that the regulations could be enforced in any consistent and reasonable manner at those sites. The public education that will occur will provide residents not only with the requirements for participating at City-owned arenas but also an awareness of skating safety that can be taken into consideration when attending unsupervised skating sites (i.e. outdoor rinks). In preparation for the implementation of the new safety regulation on November 1 st, the Community Services Department is implementing an educational campaign in October to advise the public and all current users of the new requirement. This date is proposed to allow time for some public education on the new requirements including new signage in arenas and distribution of informational brochures. The brochures would also provide information on the underlying concepts of safety during public skating. Impacts With the implementation of the rules regarding the use of helmets there may be some criticism that residents without the financial means to purchase helmets will be unable to participate in activities at the indoor arenas. Programs such as KidSport (a program operated by Sport Manitoba that provides sporting equipment to financially disadvantaged children) have extremely limited ability to assist in this manner. Although the use of helmets for Learn to Skate programs has been a long standing requirement, the City has not provided the safety equipment to participants. Initiating a program to loan helmets to participants is not recommended due to hygiene and other concerns. The fit of helmets is an important factor to ensure proper protection for the user. Ensuring proper fit of loaned helmets would also be problematic. The implementation of the regulations will require additional expenditures related to the communication of the safety messages to the general public and facility users. These costs would include printing and distribution of brochures on the new regulations and upgrading of signage in all City-owned arenas. There may be additional financial implications for community centres or community group operated arenas that currently do not provide on-ice supervision for public skating times. 7

8 FINANCIAL IMPACT STATEMENT: The initial and ongoing costs associated with the educational materials would be absorbed as part of the Community Development and Recreation Services division s budget. 8

9 Financial Impact Statement Date: October 7, 2004 Project Name: Policy on Protective Head Gear in City Owned Arenas First Year of Program 2004 Capital Capital Expenditures Required $ - $ - $ - $ - $ - Less: Existing Budgeted Costs Additional Capital Budget Required $ - $ - $ - $ - $ - Funding Sources: Debt - Internal $ - $ - $ - $ - $ - Debt - External Grants (Enter Description Here) Reserves, Equity, Surplus Other - Enter Description Here Total Funding $ - $ - $ - $ - $ - Total Additional Capital Budget Required $ - $ - $ - $ - $ - Total Additional Debt Required $ - $ - $ - $ - $ - Current Expenditures/Revenues Direct Costs $ 6,900 $ 3,000 $ 1,500 $ 1,500 $ 1,500 Less: Incremental Revenue/Recovery Net Cost/(Benefit) $ 6,900 $ 3,000 $ 1,500 $ 1,500 $ 1,500 Less: Existing Budget Amounts 6,900 3,000 1,500 1,500 1,500 Net Budget Adjustment Required $ - $ - $ - $ costs include $3,300 for signage and $3,600 for promotional materials and beyond is for promotional materials. The Community Development and Recreation Services division will absorb these incremental costs. C. Wightman, Manager Finance & Administrative Services 9

10 IN PREPARING THIS REPORT THERE WAS CONSULTATION WITH, AND CONCURRENCY BY: Public Works Department Corporate Services Department, Legal Services Division General Council of Winnipeg Community Centres THIS REPORT SUBMITTED BY: Community Services Department Prepared by: Gerald Mirecki File No. 10

11 APPENDIX 1 SKATING SAFETY SURVEY Prepared by: The Community Services Department Strategic & Information Systems Services May 9,

12 SKATING SAFETY SURVEY 1.0 INTRODUCTION On February 10, 2003 the Standing Policy Committee on Protection and Community Services passed a motion that the Administration work in partnership with the General Council of Winnipeg Community Centres (GCWCC) to develop and recommend a policy regarding safety regulations for public skating and associated uses at all City owned indoor arenas for consideration by the Standing Policy Committee on Protection and Community Services. This request was a direct result of a fatality that occurred during public skating on January 26, 2003 at an indoor arena in Virden, Manitoba. The purpose of this report is to compare the City of Winnipeg Community Services Department s rules and regulations pertaining to skating at the City s indoor arenas, to those of other local arenas and a cross-section of other Manitoban and Canadian jurisdictions. The research focuses on skating safety procedures and more specifically on rules and regulations pertaining to the use of helmets by patrons. The City of Winnipeg currently owns 30 indoor arenas (15 City owned and operated, 3 contracted out arenas and 12 Community Centre arenas) - See Appendix A. The survey results will be used to assist in the formulation of a policy, as requested by the Standing Committee on Protection and Community Services. 2.0 METHODOLOGY A six-question telephone survey was developed and implemented to gather information on the skating safety practices of local arena operators and a cross-section of other Canadian municipal arenas. The survey was administered to a program administrator from each arena or municipality based on the practices of the organization as a whole. In total, three local private arenas were surveyed, five rural Manitoba municipalities and six other Canadian cities, in addition to the 15 City of Winnipeg owned and operated arenas, three contracted out arenas and 12 Community Centre arenas. The survey sample selection was based on the following criteria: a. All arenas within the City of Winnipeg (except the Winter Club which is for members only) b. Representation from other larger Manitoban municipalities c. Representation from a cross-section of other Canadian municipalities The arenas surveyed include: 18 City of Winnipeg arenas (15 city owned and operated and 3 contracted out) 12 Greater Council of Winnipeg Community Centres (GCWCC) arenas The University of Manitoba Highlander Dutton 12

13 East St. Paul Selkirk Brandon Steinbach Dauphin Burnaby, BC Edmonton, AB Calgary, AB Regina, SK Hamilton, ONT Halifax, NS 3.0 LIMITATIONS This survey attempts to compare the skating safety practices of other local and Canadian jurisdictions with the City of Winnipeg. The data represents a sample from a cross-section of comparable local and Canadian municipalities. It is not intended to be a comprehensive analysis of the practices for all Canadian municipalities. As such the following limitations of the research data should be noted: 1. The survey sample design is based on a non-random sample of 3 local, 5 rural Manitoba and 6 comparable Canadian municipalities (plus the City Winnipeg). 2. The survey was administered to a program administrator in each of the jurisdictions sampled. While every attempt was made to ensure the accuracy of the data collected, the data is subject to the recollections of the person being interviewed, therefore, response bias cannot be ruled out. 3. The survey consisted of six long answer questions. The amount of information and detail provided by each municipality varies from survey to survey. 13

14 4.0 KEY FINDINGS 4.1 Policies, Rules and Regulations None of the local arenas or municipal jurisdictions surveyed, including the City of Winnipeg have a council adopted policy regarding the use of helmets in their arenas. The City of Winnipeg strongly recommends the use of helmets during public skating; this is consistent with the practices of all other municipalities surveyed. Eight Community Centres, the Highlander and Dutton arena all have specific rules requiring children to wear helmets during public skating. The City of Winnipeg requires that helmets and gloves/mitts be worn for all Learn to Skate classes, with the exception of Figure Skating classes above the introductory and basic levels. These rules meet or exceed that of all other local and municipal jurisdictions surveyed. In all of the arenas/municipalities surveyed the rules only apply to indoor arenas. 4.2 Public Skating Skate Patrols The City of Winnipeg, GCWCC and nine of the other 11 municipalities surveyed use skate patrols to supervise public skating. Winnipeg employs one patrol per 50 skaters, which is well within the range indicated by the other municipalities surveyed (the local arenas do not use patrols). The ratio of skate patrols to public skaters ranges from 1 patrol: 25 skaters in Halifax, to 1 patrol: 100 skaters in Edmonton. Additional skate patrols are commonly added for peak days such as school holidays. The role of the skate patrols, where utilized, is very similar for all of the municipalities surveyed including Winnipeg. 4.3 Safety Communication The type of safety messages communicated by the City of Winnipeg are similar to those of the other Canadian municipalities surveyed, and meet or exceed the number of safety messages communicated by the other local arenas and Manitoba municipalities surveyed. They include: recommendations for patrons to wear helmets, stay off the ice until the Zamboni gate closes and messages pertaining to safe play. The City of Winnipeg utilizes as many or more safety communication methods as all other arenas/ municipalities surveyed including: signage, website, use agreements, leisure guide, registration letters, skate patrols and instructors. 4.3 Serious or Critical Incidents None of the respondents from the local and municipal jurisdictions surveyed could recall any fatalities in their arenas, with the exception of heart attacks. 14

15 5.0 SURVEY ANALYSIS The survey results were analyzed according to the following categories: 1. Policies, Rules and Regulations Policies Public Skating Rules Learn to Skate Rules Rules for Other Users Scope of the Rules and Regulations 2. Public Skating Skate Patrols Use of Skate Patrols Ratio of Skate Patrols to Skaters Role of Skate Patrols 3. Safety Communication Key Safety Messages Communication Methods 4. Serious or Critical Incidents 5.1 Policies, Rules and Regulations In this section the policies, rules and regulations regarding the use of helmets for skating in indoor arenas are analyzed. Chart compares the policies and procedures of three local arenas and 11 other municipal jurisdictions to that of the City of Winnipeg and the GCWCC. Policies None of the local arenas or municipal jurisdictions surveyed, including the City of Winnipeg have a council approved policy regarding the use of helmets in their arenas. Rules for Public Skating While the City of Winnipeg does not require helmets for public skating, it strongly recommends that all children wear helmets. Of the 12 Community Centre arenas in Winnipeg, 8 have rules requiring helmet use by children during public skating, 2 recommend helmets be worn and 2 have no rules pertaining to helmets. The ages for children requiring helmets at Community Centre arenas ranges from under 12 to under 18 years of age. None of the jurisdictions surveyed require adults to wear helmets for public skating. Of the 14 other arenas/municipalities surveyed, only two have rules or regulations pertaining to the use of helmets for public skating. 15

16 Two of the three local arenas (Highlander and Dutton) have specific rules requiring children to wear helmets during public skating. The Highlander arena requires that all children under the age of 14 years of age wear a helmet and Dutton arena requires children less than 18 years of age to wear a helmet. None of the 11 other municipal jurisdictions have any rules regarding the wearing of helmets during public skating, however six of them recommend the use of helmets, particularly for children, during public skating. Rules for Learn to Skate The City of Winnipeg requires that helmets and gloves/mitts be worn for all Learn to Skate classes, with the exception of Figure Skating classes above the introductory and basic levels. Of the 12 Community Centre arenas in Winnipeg, 8 have rules requiring that a helmet be worn during skating lessons, 2 recommend helmets be worn and 2 have no rules pertaining to the use of helmets. Of the 14 other arenas/municipalities surveyed, 8 have rules or regulations pertaining to the use of helmets during skating lessons. Of the local arenas, both the University of Manitoba and the Highlander require that helmets be worn for skating lessons and clinics. The U of M requires children 11 and under to wear a helmet and heavy gloves and Dutton arena requires helmets for all youth and adult programs and hockey clinics. Six of the other municipalities surveyed require that helmets be worn by children during skating lessons. The age for children requiring helmets ranges from a low of 5 years (East St. Paul) to 17 years and under (Burnaby). Three Manitoba municipalities (Selkirk, Brandon and Dauphin) have no rules regarding helmet use during skating lessons. Dutton Arena and the cities of Regina and Hamilton do not offer instructional skating programs. Rules for Other Users The City of Winnipeg does not require outside rental groups to wear helmets. Most patrons wear helmets however, as they are required to do so by sports organizations such as Winnipeg Minor Hockey. Eight of the 12 Winnipeg Community Centres require all third party rentals, with the exception of Figure Skating, to wear helmets. Seven of the other local and municipal arenas surveyed have some form of rules regarding the use of helmets by outside user groups renting ice. 16

17 Two local arenas (U of M and Dutton) have rules requiring helmets for rental groups. The U of M requires helmets for all ages and Dutton Arena requires helmets for those less than 18 years of age. Four municipalities (Edmonton, Calgary, Regina and Hamilton) and one local arena (Highlander) have rules requiring ice rentals for recreational or shinny hockey to wear helmets and other protective equipment. Six other municipalities (Selkirk, Brandon, Steinbach, Dauphin, Burnaby and Halifax) do not have any specific rules regarding helmet use for ice rentals, other than those rules enforced by the sports organizations/leagues. The City of Burnaby strongly recommends to school groups renting ice that students wear helmets and mitts. They indicated that in most cases the schools comply. Scope of the Rules and Regulations In all of the arenas/municipalities surveyed the rules only apply to indoor arenas. There were no specific requirements for helmets during skating on outdoor surfaces, other than those rules imposed by sports organizations (i.e. minor hockey). SUMMARY None of the local arenas or municipal jurisdictions surveyed, including the City of Winnipeg have a council adopted policy regarding the use of helmets in their arenas. The City of Winnipeg strongly recommends the use of helmets during public skating; this is consistent with the practices of all other municipalities surveyed. Eight Community Centres, the Highlander and Dutton arena all have specific rules requiring children to wear helmets during public skating. The City of Winnipeg requires that helmets and gloves/mitts be worn for all Learn to Skate classes with the exception of Figure Skating classes above the introductory and basic levels. These rules meet or exceed that of all other local and municipal jurisdictions surveyed. In all of the arenas/municipalities surveyed the rules only apply to indoor arenas. 17

18 CHART Do you have any rules, regulations or policies regarding the use of helmets in your indoor arenas? Policy Public Skating Rules Learn to Skate Rules Rules for Other Users What do policies apply to? Winnipeg No, but recommend that all children wear helmets. Helmets and gloves/mitts required for all Learn to Skate classes with the exception of Figure Skating classes above the introductory and basis levels. No City enforced rules City owned and operated regarding helmets, just league arenas and those arenas requirements contracted out GCWCC Of the 12 Community Centre arenas, 8 have rules requiring helmet use, 2 recommend helmets and 2 do not have any rules pertaining to helmets. Of the 12 Community Centre arenas, 8 have rules requiring helmet use, 2 recommend helmets and 2 do not have any rules pertaining to helmets. Policies adhere to all 3rd party rentals except Figure Skating Community Centre Arenas - the ages requiring helmets varies from 12 and under, 16 and under, 18 and under and all ages. The University of Manitoba No rules regarding helmets Helmets and heavy gloves are required for children between the ages of 5 and 11 years. Winter hockey league - helmets must be worn by all players. Rental groups - all participants must wear helmets. The University's one indoor arena. Highlander Children under the age of 14 must wear helmets. Helmets are required for hockey clinics, power skating and all youth and adult programs. Pick up hockey - helmets are mandatory. All 4 indoor arenas. Dutton All participants under the age of 18 are required to wear a helmet. Not applicable - do not offer All participants under the age of 18 are required to wear a helmet. One indoor arena. East St. Paul No rules regarding helmets Helmets are required for preschoolers aged 3-5 years. League hockey teams are required to wear helmets. One indoor arena. 18

19 CHART Continued Policy Public Skating Rules Learn to Skate Rules Rules for Other Users What do policies apply to? Selkirk No rules regarding helmets No rules regarding helmets No rules regarding helmets N/A Brandon No rules regarding helmets No rules regarding helmets No rules regarding helmets N/A Steinbach No rules regarding helmets Must wear safety helmet No rules regarding helmets All indoor and outdoor arenas. Dauphin No rules regarding helmets No rules regarding helmets No rules regarding helmets N/A Burnaby No, strongly recommend the use of helmets and mitts, but not required. Helmets required for children under 18 years of age. Recommended only for adults. School booking - strongly recommend students wear helmets and mitts and they usually do. City operates all arenas, no arenas are contracted out and there are no Community Centre arenas. Edmonton No, but recommend use of helmets. Helmets are required for children 14 years of age and under registered in skating classes. (May increase age to 16 years) Shinny hockey - full hockey gear is required for all ages. Rules only apply to City managed arenas - community operated indoor arenas have their own rules. Calgary No, but helmets are highly recommended for children under 18 years of age (they have a few spare helmets on site to loan out). Helmets and mitts/gloves required for children 16 years of age and under. Highly recommended for adults. Recreational hockey programs - full hockey gear recommended - Helmet, gloves, shin and elbow pads minimum required. All indoor arenas Regina No, but recommend use of helmets. N/A - Learn to Skate run by private clubs - helmets are required by clubs. Rush Ice - (ice booking on short notice) - regular hockey gear is required as designated by sports organizations. N/A Hamilton No, but recommend children wear helmets Not applicable - do not offer Hockey and shinny - helmets and protective equipment required All indoor arenas Halifax No, but recommend helmets for children under 12 Mandatory for children in Learn to Skate (no adult or youth classes) No - only league rules apply (i.e. minor hockey) All indoor arenas 19

20 4.2 Public Skating Skate Patrols This section examines the use of skate patrols for the supervision of patrons during public skating. Chart illustrates the ratio of skate patrols to skaters and their role in the various local arenas and municipalities surveyed. Use of Skate Patrols All of the City of Winnipeg and the GCWCC arenas use skate patrols to supervise public skating in indoor arenas. Nine of the other 11 municipalities surveyed also employ skate patrols. All of the private local arenas, Selkirk and Dauphin do not use skate patrols. Ratio of Skate Patrols to Skaters The City of Winnipeg employs one skate patrol per 50 skaters. All of the other Winnipeg arenas surveyed, that utilize skate patrols, use one or two patrols at a time. East St. Paul, Brandon and Hamilton use a minimum of two patrols at a time. The ratio of skate patrols to public skaters ranges from 1 patrol: 25 skaters in Halifax to 1 patrol: 100 skaters in Edmonton. Additional skate patrols are commonly added for peak days such as school holidays. Role of Skate Patrols The role of the skate patrols, where utilized, is very similar for all of the municipalities surveyed. In general, they patrol the ice surface (on skates) while performing the following functions: Enforce rules Apply First Aid Ensure patrons skate in one direction and at a safe speed Signal skaters to change direction Public relations SUMMARY The City of Winnipeg, GCWCC and nine of the other 11 municipalities surveyed use skate patrols to supervise public skating. Winnipeg employs one patrol per 50 skaters, which is well within the range indicated by the other municipalities surveyed (the local arenas do not use patrols). The ratio of skate patrols to public skaters ranges from 1 patrol: 25 skaters in Halifax, to 1 patrol: 100 skaters in Edmonton. Additional skate patrols are commonly added for peak days such as school holidays. The role of the skate patrols, where utilized, is very similar for all of the municipalities surveyed including Winnipeg. 20

21 CHART Public Skating - Skate Patrols Do you use Skate Patrols Ratio of Patrols to Public Role Winnipeg Yes 1 patrol per 50 skaters Enforce rules and first aid GCWCC Yes (paid & volunteer) 1 to 2 patrols per public skate The University of Manitoba No, all ice users are required to sign a waiver form. Not applicable Keep everyone moving, ensure safe speeds, enforce rules, keep order, ensure patrons wearing helmets Not applicable Highlander No Not applicable Not applicable Dutton No Not applicable Not applicable East St. Paul Yes 2 skate patrols are on duty at all times. On ice keeping people skating in the same direction and ensuring that horseplay does not occur. Selkirk No Not applicable Not applicable Brandon Yes 2 skate patrols per 100 patrons. Enforcing rules. Steinbach Yes 1 skate patrol per 30 patrons Monitoring and make emergency phone calls. Dauphin No Not applicable Not applicable Burnaby Yes 1 skate patrol per 75 patrons Edmonton Calgary Regina Yes Yes Yes 1 monitor per 100 patrons. Use an extra monitor on school holidays as the patrons are younger. 1 monitor used (approx 50 people at a time), during special events a 2nd monitor is added. 1 ice supervisor per 50 to 60 people, during busy times add a second supervisor. Supervise ice, ensuring everyone adhering to the rules, public relations and first aid. On ice answering questions, enforcing rules, ensuring everyone is skating in the same direction Supervise ice, ensuring everyone adhering to the rules and first aid. On ice enforcing rules, keep people skating in the same direction and they change the music. Minimum 2 patrols on at a time, add extra when Hamilton Yes Enforce rules and first aid required Supervise ice, ensuring everyone adhering to the Halifax Yes 1 patrol per 25 people rules and first aid. 21

22 4.3 Safety Communication This section analyzes the communication of safety messages to the general public. The majority of the arenas surveyed, including the City of Winnipeg, utilized several medium to communicate safety messages to the public. Chart illustrates the messages and various mediums used. Key Safety Messages The City of Winnipeg safety messages are comparable to that of the other Canadian municipalities surveyed, and meet or exceed the number of safety messages communicated by the other local arenas and Manitoba municipalities surveyed. The most common safety messages include: recommendations for patrons to wear helmets, stay off the ice until the Zamboni gate closes and messages pertaining to safe play. Communication Methods Various methods are commonly used to communicate safety messages to the public including: signage, website, use agreements, leisure guide, newsletters, registration letters, skate patrols and instructors. The City of Winnipeg utilizes as many or more safety communication methods as all other arenas/ municipalities surveyed. The City of Winnipeg, GCWCC and nine of the 14 other municipal jurisdictions used signage in the arenas to communicate safety messages. The City of Winnipeg, GCWCC, University of Manitoba and Burnaby communicated skating safety messages on their website. The City of Winnipeg, the University of Manitoba and six other municipalities communicated some form of safety message to rental groups via use agreements. The City of Winnipeg, GCWCC and four other municipalities printed skating safety messages in their Leisure Guide or newsletter. The City of Winnipeg, GCWCC, Dutton arena and nine other municipalities used skate patrols during public skating to communicate safety messages. 22

23 SUMMARY The type of safety messages communicated by the City of Winnipeg are similar to those of the other Canadian municipalities surveyed, and meet or exceed the number of safety messages communicated by the other local arenas and Manitoba municipalities surveyed. They include: recommendations for patrons to wear helmets, stay off the ice until the Zamboni gate closes and messages pertaining to safe play. The City of Winnipeg utilizes as many or more safety communication methods as all other arenas/ municipalities surveyed including: signage, website, use agreements, leisure guide, registration letters, skate patrols and instructors. 23

24 CHART Communication Methods Winnipeg GCWCC Message Skate forward in one direction, games & horseplay not permitted, respect rights of other skaters, no piggyback skating, clear the ice at sound of horn and no skaters on ice until Zamboni gates are closed Signage Yes Use of helmets manditory/recommended, skate at own Yes risk Website Yes Yes Communication Methods Used Use Agreements User requires insurance & responsible for supervision of facility Southdale C.C. - School groups required to wear helmets Leisure Guide Yes, for both registered programs & Public Skating Skate Patrols/ Instructors Yes Newsletter Yes Other Registration confirmation letters The University of Manitoba Helmets must be worn by all players. (Winter hockey league) No Yes Yes Highlander CSA helmets are mandatory. No No No Dutton East St. Paul Selkirk Helmets required for anyone under 18 years. Helmets are required for pre-schoolers in learn to skate program. (Ages 3-5 years) Helmets must be worn in public skating. No No No Not No Nothing applicable Not applicable No Learn to skate brochures Not applicable Yes Nothing No No No No Yes Nothing Yes No No No No Nothing Brandon Recommendation for wearing helmets. No No No Yes Yes Steinbach Helmets are required for hockey players. Verbal communication by front desk clerk. Yes No Yes Yes Yes Event calendar 24

25 CHART Communication Methods Continued Message Signage Website Communication Methods Used Use Agreements Leisure Guide Dauphin Helmets should be worn. Yes No Yes No No Skate Patrols/ Instructors Other Stickers on elbow pad and hockey sticks Burnaby Do not: skate fast, cut in/out/play tag, or carry children on the ice, helmets recommended for all ice activities and remain off the ice until the zamboni gates closed. (See appendix) Yes Yes, for registered programs Yes Yes, for registered programs Yes Verbal communication by clerks Edmonton No excessive speed, horseplay, acting out or foul language and no carrying a infant. Helmet use recommended. (See appendix) Yes No Own risk - user must provide insurance. No Yes Posters Calgary Skate safe, no rough play, circle in one direction, no backward skating Yes lots No Protective equipment required for hockey Yes, for registered programs Yes Registration confirmation letters Regina Skate safe, faster skaters on the outside, slow skaters on the inside. No one allowed on the ice when the Zamboni is cleaning the ice surface. Yes No No No Yes Hamilton Respondent did not know. Yes No No No Yes Halifax Play safe rules, helmets recommended Yes No Yes No Yes 25

26 4.4 Serious or Critical Incidents In this section the survey responses regarding serious or critical incidents in arenas are examined (See Chart 4.4.1). None of the respondents from the local and municipal jurisdictions surveyed could recall any fatalities in their arenas, with the exception of heart attacks. Other incidents cited include: Separated shoulders Broken ankles Adult fell backward onto a skate and cut his back By-standers hit by hockey pucks Chin cuts Falls Sprained wrist Concussion Broken legs Broken hip Participant fell backward hitting her head Child went head first into the boards SUMMARY None of the respondents from the local and municipal jurisdictions surveyed could recall any fatalities in their arenas, with the exception of heart attacks. 26

27 CHART Have you had any serious or critical incidents at your arena(s) that you can recall? Serious or Critical Incidents Winnipeg GCWCC No, a participant fell backwards hitting her head, loosing consciousness for a few minutes. Paramedics called but she refused to go in ambulance A child went head first into the boards, ambulance called The University of Manitoba Highlander Dutton East St. Paul Selkirk Brandon Steinbach Dauphin Burnaby Edmonton Calgary Regina Hamilton Halifax An individual participating in an ice rental event had a heart attack. Heart attacks, separated shoulder, broken ankle. An adult fell backwards onto a skate and cut his back - required stitches. Two by-standers were hit by hockey plugs. No, we get a lot of chin cuts Just normal falls, sprained wrists and a skating instructor suffered a concussion one time. No, we've had broken legs No, an elderly lady fell during public skating and broke her hip. 27

28 APPENDIX A ARENAS OWNED BY THE CITY OF WINNIPEG City of Winnipeg Operated: Bertrand Billy Mosienko Century Charles A. Barbour Eric Coy Maginot Old Exhibition Pioneer River East Roland Michener Sam Southern Sargent Park St. James Civic Centre Terry Sawchuk Vimy Contracted Out Arenas: Kinsmen-Allard St. Vital West Kildonan Community Centre Arenas: Dakota Community Centre (twin) Ed Golding Memorial Arena Ft. Richmond Community Centre Gateway Arena (twin) Glenwood Community Centre Keith Bodley Arena Maples Multiplex Notre Dame Arena River Heights Community Centre St. Norbert Community Centre Southdale Arena Varsity View Sportsplex

29 APPENDIX 2 Safety Regulations for City Owned Arena Usage 1) Introduction a. Context the City of Winnipeg owns and operates a significant portion of the indoor ice arenas in Winnipeg. The City must ensure that the users of these facilities can participate in a safe manner. b. Purpose of regulations the purpose of the regulations is to provide clear and consistent guidelines and procedures to ensure the safety of participants in all City owned indoor ice arenas. The regulations supplement arena operation safety regulations by focusing on the on ice activities, programs, and rental uses within the arena. 2) Definitions the following definition of terms shall apply to this document: a. Community Centres an official body recognized and funded as a community centre by the City of Winnipeg. Consists of a membership, with an annually elected Volunteer Executive, assembled for the purpose of providing a broad range of leisure activities for all ages within a recognized boundary area. This Executive assumes responsibility for the care, control and first-line maintenance of the physical structures and amenities in which the activities of the Centre are based. b. Community Groups groups to whom the city has contracted the operation of city owned arenas c. Organized Sport Associations organizations with affiliation to recognized sport governing bodies (i.e. Minor Hockey; Minor Ringette, etc.) d. Casual/Contract rentals rentals to groups that have no affiliation to recognized sport governing bodies (i.e. church groups, pick-up hockey, birthday parties, etc.) e. Learn to Skate an instructional program to develop skating skills which may include figure skating, power skating, hockey and ringette skill development f. Public Skating dedicated ice time for recreational skating; no instruction is provided; a fee may or may not be charged 3) Safety Regulation Statements a. Equipment i. City, Community Centre and Community Group operated programs 1. Learn to Skate participants in learn to skate programs, including adults, must wear a proper-fitting CSA approved helmet and gloves or mitts (the only exception would be participants in figure skating beyond the introductory and basic levels) 2. Public Skating all participants under 18 years of age must wear a proper-fitting CSA approved helmet and gloves or mitts. It is recommended that adults also wear a helmet and gloves or mitts. 31

30 b. Supervision ii. Rentals 1. Organized sport associations participants must follow the sport s established rules and guidelines regarding equipment 2. Casual/Contract Users all participants under 18 years of age must wear a proper-fitting CSA approved helmet and gloves or mitts. It is recommended that adults also wear a helmet and gloves or mitts. i. City, Community Centre and Community Group operated programs 1. Learn to Skate supervision of participants is the responsibility of the on-ice program leaders; - the ratio of participants to instructor must not exceed 20:1 2. Public Skating all public skating times must be monitored by a clearly identified on-ice skate patrol; - the ratio of participants to skate patrol must not exceed 50:1 ii. Rentals 1. Organized sport associations groups will be responsible to provide supervision according to the sport s rules and guidelines and procedures 2. Casual/Contract Users for groups including minors, the group must provide an on-ice adult supervisor who must be present at all times; - the ratio of participants to supervisor must not exceed 50:1 4) Responsibility for Enforcement a. City, Community Centre and Community Group operated programs i. Learn to Skate Programming/supervisory staff and program leaders are responsible for enforcing all related guidelines and procedures with the participants in the programs ii. Public skating Programming/supervisory staff and skate patrols are responsible for enforcing all related guidelines and procedures with the participants b. Rentals i. Organized sport associations The recognized officials and coaches within the sport association are responsible for enforcing their sport s guideline and procedures ii. Casual/Contract Users the arena attendants are responsible for enforcing the related guidelines and procedures for groups not governed by a recognized sport body 5) Emergency Response Procedures a. The individual responsible for supervision of the participants will follow the following procedure in case of emergency: i. Get Help Call 911. Give the location and nature of the emergency 31

31 ii. Assess hazards and make the area safe for the participants. iii. Contact their direct supervisor and inform them of the incident iv. Make notes recording as much information as possible about the incident. v. For City of Winnipeg programs a field occurrence report is to be completed once the emergency is under control and submitted immediately to their direct supervisor. For Non-City of Winnipeg programs the arena attendant is to be notified of the emergency situation and it will be their responsibility to complete a field occurrence report and submit to their direct supervisor. vi. At non-city operated arenas the arena attendant is to be notified of any emergency situations. It is the arena attendant s responsibility to notify the group responsible for operation of the arena, which must then notify their liaison person with the City of Winnipeg. b. Information about the emergency situation is to be communicated through the appropriate levels of supervision to the appropriate Department Head and the relevant communications officer. 6) Training City of Winnipeg, Community Centre and Community Group staff and program leaders are to be trained on the safety regulations and their respective roles and responsibilities. 7) Communication of the Regulation a. Public Education i. General public the Safety Regulations for Arena Usage will be communicated to the general public through signage at arenas; in publications promoting the programs (i.e. program brochures, Leisure Guide); on the City of Winnipeg web page and as other appropriate occasions arise ii. City, Community Centre and Community Group operated programs participants the regulations will be communicated on registration information (i.e. receipts); verbally by the program leaders and through signage in the arenas iii. Rental groups the regulations will be communicated in written format with the facility use agreements b. Signage all City of Winnipeg owned arenas will display signage that outlines the appropriate safety messages included in these regulations 31