REPORT REPORT TO: REPORT FROM: Chair and Members of Community Affairs Committee Frank Prospero Recreation Supervisor, Community Development DATE: August 15, 2011 REPORT NO.: RE: R-2011-0021 Draft Outdoor Ice Rink Policy and Procedures File: R05 OU RECOMMENDATION: THAT Report No. R-2011-0021, dated August 15, 2011 regarding Draft Outdoor Ice Rink Policy and Procedures be received; AND FURTHER THAT Community Affairs Committee approves in principle the Draft Outdoor Ice Rink Policy and Procedures contained within Appendix A and Appendix B of Report No. R-2011-0021; AND FURTHER THAT staff be directed to proceed with the Draft Outdoor Ice Rink Policy implementation plan contained in Report No. R-2011-0021 and report back to the Community Affairs Committee after the first year of implementation; AND FURTHER THAT the Outdoor Ice Rink Budget as outlined in Report No. R-2011-0021 be referred to the 2012 Budget Committee for consideration. BACKGROUND: Town staff have traditionally operated three community scale outdoor ice rinks in two locations in the Town, one at McKenzie-Smith Bennett school in Acton and two at the Georgetown Fairgrounds. In the past, the Town has received requests from the community to establish outdoor ice rinks in local neighbourhoods. In the absence of a Corporate Policy framework, staff have managed requests to date on an individual basis and accommodated the works in the existing Operating Budget. Staff have developed a Draft Policy, and related procedures and resources to ensure a fair and equitable process for establishing outdoor rinks. The process would address the necessary
financial and liability issues required to successfully manage neighbourhood outdoor ice rinks. COMMENTS: The purpose of this report is to seek Council approval of an Outdoor Ice Rink Policy to address the development and management of unsolicited outdoor rink requests by the community on Town owned or managed lands. Background Review from Other Municipalities Numerous models of outdoor ice rinks are currently used by municipalities and differ in the delivery of the program and costs. A brief outline has been included below that covers the format of volunteer groups, use of subsidies, type of ice rinks, and a discussion on the use of hockey nets. Neighbourhood Associations or incorporated groups are used as the primary resource for outdoor ice rinks for some municipalities such as Brantford and London. Other Municipalities such as Waterloo and Orangeville rely on local citizens forming a committee or ice rink team to maintain the outdoor ice rinks. There are some municipalities that require the volunteer group or association to provide financial statements before and/or after a season as part of a grant payment. Typically there is a minimum of at least four core volunteers who form the basis of a rink committee. Their responsibility is to secure additional volunteers to assist with the operation of the rink. Outdoor ice rink grants or subsidies are offered by Brantford, Guelph, Hamilton and Kitchener. The standard format involves the volunteer group or neighbourhood association receiving payment anywhere from $7 to 10 per day for every day the ice rink is open for skating. The volunteers submit weekly inspection logs indicating the amount of skateable days and the Town/City provides a payment at the end of the season. There is a maximum number of days that a group may receive a reimbursement. The range of payment varies from 20 to 50 payable days per season. Some municipalities require the volunteer group to re-invest their money into supplies required to operate or enhance the rink while others allow the money to be used by the local neighbourhood for community events. The municipalities that do not offer a grant or subsidy rely on volunteers to provide their service without any monetary gain. The majority of rinks operated are primarily intended for pleasure skating but at times are also used for shinny hockey (unorganized hockey). Some municipalities use signage or a schedule to identify which activity is permitted during designated times. The Town of Markham for example states that shinny hockey is only to be permitted when there are two ice rinks provided, the sheets are separated with fencing, and the hockey nets are perpendicular to the pleasure skating area. Many Municipalities do not permit the use of high boards as this encourages slap shots or more competitive levels of play. Occasionally a municipality will allow the volunteer group to decide if they are applying for a pleasure skating rink or shinny hockey rink. At times the type of activity is also dictated by rules on the use of hockey nets. Page 2 of 15
There are various positions on the use and type of hockey nets permitted on outdoor ice rinks. After a fatal incident where a child was struck by a puck the City of Guelph has determined that ice rinks will only use pond hockey style of nets. Pond hockey nets are typically smaller in stature and width thereby eliminating the need for a goalie. Pond hockey nets reduce the risk of injury from a falling net and discourage high shots on goal. The City of Guelph now provides these nets to outdoor ice rink groups upon request. The Township of Guelph/Eramosa provides standard hockey nets to their volunteer groups. Other municipalities such as Brantford and Kitchener require that nets be provided by the volunteer group to meet CSA standards and any other standards set out by the Town or City. While some Towns or Cities outline the use of nets there are still many outdoor ice rink programs that do not provide direction on the use of nets within their program or manuals. Policy and Procedure Review The current internal process for handling outdoor ice rink requests has undergone a number of minor revisions in response to the changing needs of the community and the program. Presently, the information on Outdoor Ice Rinks must be requested by the public as it does not formally appear on the website or in the Recreation and Parks Activity and Service Guide. The Recreation and Parks Strategic Action Plan (2007) recommended that outdoor ice rink use be monitored and that the longer term needs of outdoor ice rinks be established. As such, staff drafted the policy to ensure it reflected current and emerging trends within our community. As part of the outdoor ice rink development process, staff consulted with various municipalities with similar programs and has incorporated relevant findings, where appropriate. The review also included an update in the formatting of the Outdoor Ice Rink Policy and Procedures to ensure compliance with the new Town standard. This update also ensures the Outdoor Ice Rink procedures and associated forms are readily available on the Towns website for easy access. Staff also took into consideration administrative enhancements designed to streamline the process for our residents thereby ensuring ease of use. The action plan below contains further opportunities for users of outdoor ice rinks to evaluate the proposed new procedures. For the Committees reference, the proposed Outdoor Ice Rink Policy and Procedure are attached as Appendix A and B to this report. Policy In addition to the formatting requirements, the following key sections are reflected in the draft policy: Inclusion of strategic priorities as contained in the Town s Strategic Plan Definitions Eligibility Criteria Policy review guidelines Page 3 of 15
Attached as Appendix B to this report is the proposed procedure for Outdoor Ice Rinks, which has been created in accordance with the new standard for Town policies. This procedure will assist our residents in navigating the requirements of the application and approval process as well as clearly understanding their responsibilities. Procedure In addition to the formatting requirements, the new procedures contain the following sections: How to get started. Application Approval Process. Town Support and Responsibilities. Volunteer Group Responsibilities. Decision process. Application Form In addition to the formatting requirements the following information is reflected in the new Outdoor Ice Rink Application form: Identification of previous Outdoor Ice Rink locations Size of rink requested Equipment requested Statement of acknowledgement and understanding Staff will contact existing volunteer groups who have been supporting outdoor ice rinks to ensure they are aware of the new application process and submit the form for continued involvement. Action Plan Upon approval of the Draft Outdoor Ice Rink Policy and Procedures staff will proceed with the plan of action outlined in the chart below. Included is a consultation process where the proposed changes will be vetted with current users of the program. Staff believe that those most familiar with the program are in the best position to offer appropriate insight. No. Item Action Timeline 1 Draft Outdoor Ice Policy, Procedure and Proposal Form CACC approval of policy and ratified by Council with recommendation to include in Budget considerations. September 2 Finalize Procedure and Draft Resource Manual and Forms Input from Town staff and consultation with various municipalities and Ontario Recreation and Facilities Association (ORFA). October Page 4 of 15
3 Consultation Focus Groups (previous/new users) Incorporate input in all policies, procedures and programs. 4 Activate Neighbourhood Outdoor Ice Rink Strategy Communications internal/external Posted on Town website Training of volunteers 5 Evaluation Review of Year End Volunteer Reports and process (i.e. survey). 6 Report back to CACC Provide a summary of the past season and policy recommendation. October November March 2012 May 2012 RELATIONSHIP TO STRATEGIC PLAN: This report relates to the following Corporate Strategic Plan objectives: A.3 To provide a broad range of educational, recreational and cultural services that meet the needs of our residents. A.10 To encourage and promote community volunteerism. FINANCIAL IMPACT: The current operating budget for the set-up and operation of the existing outdoor rink program is $12,000.00. This includes three Town managed rinks at the Georgetown Fairgrounds and McKenzie Smith Bennett (set up and operation) and average of three volunteer managed rinks in various locations (set up only). A list of expenses for outdoor ice rinks is attached as Appendix C to this report. Staff will report back on the operating budget impacts associated with the establishment of new rinks as part of the final policy review. COMMUNICATIONS IMPACT: Upon Committee approval of the recommendations contained in this report, correspondence will be sent to the current outdoor ice rink volunteers to inform them of the new application process. The public will be kept informed about the Outdoor Ice Rink Policy and Procedure through electronic newsletters and web postings. Upon an application being received, staff will notify all applicants in writing with the outcome and assist the group in completing the outlined process. ENVIRONMENTAL IMPACT: NA Page 5 of 15
CONSULTATION: Staff from the Infrastructure Services Department and Department Facility Staff were consulted during the preparation of this report. As well with the community including: Georgetown Minor Hockey Association, Acton BIA and Matthew Jackson (Gellert Community Rink 2010, volunteer). Information on outdoor ice rinks from over 15 municipalities were reviewed to supplement standards developed by the Ontario Recreation Facilities Association. CONCLUSION: Staff have developed a Draft Outdoor Rink Policy to address the policies and procedures related to the development and management of volunteer led rinks in the community. Upon approval in principle, staff will consult with the community and report back on a final approach and associated budget impacts. Respectfully submitted, Frank Prospero Recreation Supervisor, Community Development Terry Alyman Director of Recreation and Parks Dennis Y. Perlin Chief Administrative Officer Page 6 of 15
Appendix A DRAFT Page 7 of 15
Appendix A DRAFT Page 8 of 15
Appendix B DRAFT Page 9 of 15
Appendix B DRAFT Page 10 of 15
Appendix B DRAFT Page 11 of 15
Appendix B DRAFT Page 12 of 15
Appendix B DRAFT Page 13 of 15
Appendix C Page 14 of 15
Appendix C Page 15 of 15