Operations Report If this information is required in an alternate accessible format, please contact the Accessibility Coordinator at 905-623-3379 ext. 2131. Report To: General Government Committee Date of Meeting: January 23, 2017 Report Number: File Number: OPD-001-17 Resolution: GG-040-17 GG-041-17 C-024-17 By-law Number: Report Subject: Outdoor Ice Skating Rink Policy Recommendations: 1. That Report OPD-001-17 be received; and 2. That Council endorse the operating policy set out in this report for the approval and maintenance of volunteer based Outdoor Ice Skating Rinks.
Municipality of Clarington Report OPD-001-17 Page 2 Report Overview This report provides background for the recommended implementation of a new Operations Department Procedure to address the set-up and maintenance of Outdoor Community Ice Skating Rinks. 1. Background At the regular Council meeting of October 11, 2016, Council passed Resolution #C-248-16 that referred report OPD-009-16 on Outdoor Skating Rinks back to staff in the Operations Department. The resolution specifically requested that a further report be provided on how residents could utilize this policy while protecting the residents and the Municipality. In response to resolution C-248-16, and as previously recommended in Report OPD-009-16 (Attachment 1), the Operations Department has developed a new operating procedure (Attachment 2). This new procedure will guide staff on the approval and set-up process for an outdoor ice skating rink and the respective responsibilities that must be followed by each party to ensure its continuous enjoyment and safety. The proposed Outdoor Ice Skating Rink Policy, as per the attachment, provides an application and approval process that is intent on bringing volunteers, the community and municipal staff together. Once a location has been selected for the ice surface the group of volunteers must complete an application, sign a hold harmless/indemnification agreement and also provide proof of insurance naming the municipality as an additional insured. These documents are current requirements of Clarington s existing Parks By-law and are also mandatory items for Outdoor Skating Rinks in other municipalities. It has been determined that the minimum $1,000,000 insurance coverage that must be obtained by volunteers for each rink would cost between $500 and $1,250 each year. Conditions of insurance coverage may also require that each rink be fully fenced, have continuous adult supervision during authorized hours of operation and that hockey and pleasure skating will not be permitted at the same time.
Municipality of Clarington Report OPD-001-17 Page 3 2. Proposal Details of responsibilities of volunteers and staff are set out in the policy. In summary specific responsibilities that volunteers must adhere to include: participation in training, completion of twice daily maintenance and inspection reports, notification of hazards or emergencies ensuring that the community has suitable and equitable access to the ice. Staff responsibilities include: the provision of training, delivery and sign-out of equipment, posting of signs for risk management, completion of inspections on a weekly basis providing assistance to the volunteers for reasonable requests. 3. Concurrence Not applicable. 4. Conclusion The attached Outdoor Skating Rink operating procedure should provide volunteers and staff with clear direction on the process for the approval and maintenance of this type of community based initiative. This should make it easier than in the past to establish an outdoor skating rink.
Municipality of Clarington Report OPD-001-17 Page 4 5. Strategic Plan Application Recommendations of this report support the Strategic Plan initiative to promote resident engagement in our community. Submitted by: Frederick J. Horvath Director of Operations Reviewed by: Curry Clifford Interim Chief Administrative Officer Staff Contact: Stephen Brake, Manager of Operations, 905-263-2291 or sbrake@clarington.net Attachment 1: Attachment 2: Operations Report OPD-009-16 - Outdoor Community Skating Rinks Outdoor Ice Skating Rinks Operations Policy
Attachment 1 Report OPD-001-17 Operations Department Report If this information is required in an alternate accessible format, please contact the Accessibility Coordinator at 905-623-3379 ext. 2131. Report To: General Government Committee Date of Meeting: September 26, 2016 Report Number: OPD-009-16 Resolution: File Number: Report Subject: Outdoor Community Skating Rinks By-law Number: Recommendations: 1. That Report OPD-009-16 be received for information; 2. That staff of the Operations Department be requested to formalize an outdoor community skating rink standard operating procedure prior to this winter that will outline the application and approval process for volunteers, staff responsibilities, volunteer responsibilities, equipment to be supplied by the municipality and guidelines affecting liability and usage; and 3. That staff include in the 2017 current budget submission an allocation of $1,500.00 for the set-up of one volunteer based community skating rink.
Municipality of Clarington Report OPD-009-16 Report Overview Periodic requests are received by Council and staff each winter to provide outdoor community skating rinks. This report outlines the Operations Department current approach with respect to this level of service and what improvement options are recommended for the future. 1. Background Outdoor skating has historically been a fun activity for individuals and families alike to participate in during the long winter months. Outdoor skating on natural ice, however, requires a safe location, a properly maintained surface and also remains very dependent on the presence of suitable weather patterns. Outdoor municipal skating rinks have not existed in Clarington for many years due to their high demand on staff resources, the wide availability of indoor ice across the municipality for public skating, the absence of a dedicated volunteer base to create outdoor rinks and also the inconsistency of below freezing winter temperatures. Although there has not been any approved outdoor skating rinks in Clarington in recent years, the existing Parks By-law presently does allow for their construction and operation by volunteers or community groups subject to specific terms and conditions. Ice Types Outdoor skating can be accommodated on a number of different surfaces including natural ice, artificial ice or synthetic ice. Natural ice is the simplest form which can be constructed in most open space areas that are reasonably level. Depending on the location selected, specific containment measures are generally necessary and may include the installation of perimeter boards or a berm, a plastic liner and/or the availability of a non-permeable surface. Other requirements that are considered necessary to construct a quality outdoor ice skating surface will include the availability of a water source, dedicated maintenance support, adequate lighting levels and ultimately a prolonged forecast of cold winter weather. While natural ice is present during the winter months on many of the storm water management ponds that are now situated throughout Clarington, their use for skating is strictly prohibited due to various safety issues. These safety concerns include the overall depth of the ponds, the possibility of rapidly fluctuating water levels and the
Municipality of Clarington Report OPD-009-16 Page 3 tendency of the ponds to carry higher concentrations of chlorides that may weaken the overall strength of the ice. Similar to indoor ice facilities, artificial ice can be created in an outdoor setting when a refrigeration plant is introduced to chill water to below the freeze point and to maintain its state regardless of any fluctuation in the outdoor temperatures to above zero Celsius. As might be expected, however, very significant costs are incurred with this type of ice installation that includes the construction, operation and maintenance of the refrigeration equipment and the associated staff time. For obvious reasons, outdoor artificial ice facilities are also best situated in a purpose built location where refrigeration plant equipment is available and proper services exist for maintenance that include a dedicated water source and ice resurfacing equipment. Synthetic Ice is a relatively new technology whereby large plastic panels are installed on a flat stable surface. The self-lubricating interlocking panels can be fashioned into any shape or size and are designed to somewhat replicate the effects of natural or artificial ice although it s reported that additional skating effort of approximately 15% is required due to the friction that is encountered with the polymer surface. Although synthetic ice is not susceptible to above zero temperatures it is not maintenance free as the panels require periodic spraying with a glide enhancer and may also require regular cleaning depending on the amount of exposure to dust and dirt. While synthetic ice can be used outdoors it appears that it is much better suited to a controlled indoor application. Some manufacturers recommend that when synthetic ice is not in use that it be covered with a heavy tarp for protection purposes. Experience from Neighbouring Municipalities Many of the local municipalities within Durham Region and beyond have experienced similar logistical and staffing challenges to provide community outdoor ice skating facilities. With the exception of the City of Pickering and the Municipality of Port Hope, all other municipalities in our immediate area only offer programs that support volunteer based installations. In the case of the City of Pickering, the municipality installs a 2800 square foot synthetic ice surface on one of their neighbourhood tennis courts each winter. The synthetic ice surface has only been received with limited success by the public and is not being maintained to the recommended standards which ultimately could affect the longevity and overall usefulness of the surface. The Municipality of Port Hope presently constructs only one municipal natural ice surface for outdoor skating each winter that is heavily supported by a group of
Municipality of Clarington Report OPD-009-16 Page 4 volunteers. Municipal staff are responsible for performing maintenance during regular business hours while the community members provide all of the inspection and maintenance requirements that are necessary after hours. The municipalities of Ajax and Oshawa currently have programs in place that allow for the set-up and operation of outdoor skating facilities by volunteers. In general, the applications are received from volunteers that have managed outdoor skating facilities for many years in those communities. For the future, the Town of Ajax has included infrastructure in a large commercial/residential development presently under construction at the intersection of Harwood Avenue and Bayly Street that will provide for a municipally operated outdoor artificial ice surface. The Town of Whitby currently does not have any type of municipal or volunteer operated community outdoor skating programs in effect. Options As outlined above, consistently below freezing temperatures are necessary for the development of natural ice for community skating rinks. Unfortunately, however, the weather in Durham Region during many recent winters has not been conducive to such initiatives. Based on historical background data Clarington received, on average, a total of twenty five minus ten degree days between the years 2000 to 2009. (It has also been reported in a future climate summary prepared by the Region of Durham that during the 2040 to 2049 time horizon, there will be zero days in Clarington when the air temperature will be less than minus ten degrees Celsius. Although the climate change as suggested in the 2040 study is still more than two decades away there is already evidence indicating that the general trend is towards higher temperatures, less snow and more rain during the winter months.) The option of staff setting-up and maintaining an outdoor community skating rink with natural ice is not supported given these unpredictable weather patterns and the time, costs and efforts that would be incurred to provide this service. A more attractive option could be for volunteers or community groups to manage this service under the general direction and assistance of municipal staff. Such an approach reflects the practices of other municipalities throughout the Greater Toronto Area. Volunteer support for this type of initiative would include the selection of an appropriate site, the provision of training on how to best construct and maintain a natural ice surface and also where necessary the supply of materials such as perimeter boards, a plastic liner, garden hoses, portable toilet(s), garbage cans, picnic tables, signs, shovels, inspection forms and the provision of a municipal water source or where appropriate a residential water rebate. It is estimated that the cost to provide the
Municipality of Clarington Report OPD-009-16 Page 5 necessary materials and staff time to assist with the set-up of each rink will be approximately $1,500 a year. These funds are presently unbudgeted in the Operations Department annual current budget. Trying this out in one location would permit us to learn what works and what doesn t without creating significant staff time and operating costs. Other alternatives as outlined in this report including a synthetic ice surface or the construction of an artificial outdoor ice skating facility require significant capital for the initial purchase, construction and start-up. The maintenance of these types of facilities also require a large commitment of staff time that is not available within the municipality s existing compliment of resources. Consideration for these other types of installations is therefore not supported at this time. 2. Concurrence Not applicable. 3. Conclusion Outdoor Skating Rinks can be considered important pieces of infrastructure in the community where residents can gather to enjoy the outdoors and participate in an active lifestyle. As part of the service levels that are offered by Clarington, municipal staff should be available to promote and assist with the set-up of outdoor skating rinks when suitably requested by a group of volunteers. Outdoor skating rinks are ideally situated in community parks with areas that are relatively level, have limited encumbrances, provide adequate lighting, suitable access for emergency vehicles, parking for vehicles, internal pathways and access to a water source either from on-site municipal infrastructure or the home of an abutting volunteer. (One example of this type of location would be the existing basketball court in Guildwood Park in Bowmanville. At the time of development the basketball court was recessed into the ground and specifically designed with the necessary infrastructure for the purpose of being flooded during the winter months to create an outdoor skating rink. Other community parks in Clarington that may also allow the easier formation of outdoor skating rinks include Brookhouse Parkette in Newcastle, Pearce Farm Park in the Port of Newcastle and Roswell Park in Courtice. Although it may be known that the circular courtyard area in Rotary Park in Bowmanville may have similar design features it is not considered an ideal location due to its relatively small size, limited availability of adjacent
Municipality of Clarington Report OPD-009-16 Page 6 volunteers and the presence of on-site hazards being the stone columns for the clock tower and the park lighting poles.) In an effort, therefore, to provide clear direction on this initiative staff should be requested to develop a standard operating procedure that will outline the complete application and approval process. Matters will be clearly addressed for such partnerships including operational responsibilities specific to both volunteers and staff, equipment supplied by the municipality and any safety, inspection, liability and usage guidelines. 4. Strategic Plan Application Recommendations of this report support the Strategic Plan initiative to promote resident engagement in our community. Submitted by: Frederick J. Horvath Director of Operations Reviewed by: Curry Clifford, MPA, CMO Interim CAO Staff Contact: Stephen Brake, Manager of Operations, 905-263-2291 or sbrake@clarington.net
Operations Policy Attachment 2 Report OPD-001-17 POLICY TITLE: Outdoor Ice Skating Rinks POLICY TYPE: Administrative POLICY #: ADM- EFFECTIVE DATE: February 6, 2017 REVISED: APPLICABLE TO: All Employees Purpose: To establish the process for the approval and maintenance of volunteer based outdoor ice skating rinks. Policy: Outdoor ice skating rinks provide an important community element where local residents and families can enjoy the outdoors and also participate in an active lifestyle. Outdoor Ice Skating Rinks approved by the municipality will be situated in community parks on relatively level ground that have suitable access, limited encumbrances, and adequate ambient lighting levels and are also located adjacent to a municipal water source or the home of a volunteer where water can be obtained. Procedure: Application and Approval Process 1. Interested parties must contact the municipality in writing by September 30 th of each year and be signed by a minimum of 4 adult volunteers. The request should also be accompanied by proof that a neighbourhood consultation process (i.e. resident petition) has been completed demonstrating local support for the ice rink installation. 2. The requested location and size of the ice rink must be approved by municipal staff. Preferred locations must be on generally flat lands, be accessible, have adequate ambient lighting levels and be adjacent to a suitable water source. Ice rinks will be limited to prevent excessive installations in any given area, shall be at least 20 metres offset from adjacent private property and be a minimum size of 25ft x 50ft (7.6m x 15.2m) to a maximum size of 50ft x 100ft (15.2m x 30.5m). Requests for rinks on areas of natural ice formation such as ponds are not acceptable. 3. Once the location has been approved, volunteers must agree to abide by all conditions of this policy, complete an application form (Attachment 1), sign a hold harmless/indemnification agreement and provide proof of insurance
Operations Policy coverage in the amount of $1,000,000 naming the municipality as an additional insured. All conditions of insurance coverage as specified in the policy must be complied with at all times. It should be noted that the municipality reserves the right to shut down any ice rink at any time for justified reasons. Volunteer Responsibilities 1. All volunteers must participate in training by Clarington Parks staff to acknowledge their roles and responsibilities prior to the set-up and operation of an outdoor rink. Training topics will cover such aspects as preparing the outdoor rink, proper use of equipment, maintenance and flooding techniques, required daily inspection procedures, managing risk and health and safety procedures, instruction on how to effectively manage competing or conflicting uses and volunteer safety. 2. Volunteers will be required to install and maintain equipment such as perimeter rink boards, picnic tables, garbage cans and/or any other infrastructure supplied by the municipality. 3. Volunteers are expected to provide daily maintenance activities. These duties will include snow shovelling or ice scraping, flooding of the ice surface, providing litter pick-up, etc. 4. Volunteers are required to complete a daily inspection log (Attachment 2) by 9:00 a.m. each morning and 3:00 p.m. each afternoon and then submit them to the Operations Department before noon every Friday. Any maintenance or safety concerns that are observed by volunteers during their inspection should be immediately reported to the municipality. 5. Ensure that all members of the community are given equitable access to the ice rink. 6. Volunteers are required to immediately report any serious issues, accidents or medical emergencies that they have personally observed or have been made aware of. 7. Ensure that the minimum number of volunteers (4) is provided continuously throughout the winter season to ensure that the ice rink is properly maintained. 8. At the end of each winter season volunteers are responsible for the return of all equipment loaned to them by the municipality. 9. Submit a letter requesting compensation, to a maximum of $50, if a private water source was used for rink maintenance. Page 2 of 7
Operations Policy Municipal Responsibilities 1. Provide suitable training for volunteers with information on how to effectively build and maintain outdoor natural ice surfaces, how to complete the daily inspection logs, properly manage risk, health and safety procedures, etc. 2. Deliver and sign-out any necessary equipment that may include perimeter rink boards, tarps, picnic tables, shovels, hoses, spray nozzles, garbage cans, etc. 3. Post signs at the ice rink to address risk management (Attachment 3). 4. Complete a thorough review of the ice rink installation every Friday before 12:00 p.m. and document the findings on an inspection log. Discuss and/or resolve any observed issues or concerns with the volunteers. 5. Assist volunteers during normal business hours (Monday to Friday) with reasonable levels of advice and assistance. Respond to or appropriately direct emergency situations to the proper authorities. 6. Follow-up on concerns respecting the improper use of the ice rink or during prohibited hours in accordance with the Park by-law. 7. Process compensation claims for private water use. Page 3 of 7
Operations Policy ATTACHMENT 1 Outdoor Ice Skating Rinks Application Form Location of Rink: Main Contact Person: Address: Phone: Home Business/Cellular E-Mail Date: Signature: Volunteers: Name Address Phone Signature Page 4 of 7
Operations Policy ATTACHMENT 1 (Continued) Inspection Findings: Neighbourhood Consultation Process Complete Flat Location Minimum Private Property Offset (20 meters) Minimum Size Requirement (7.6 meters x 15.2 meters) Limited Encumbrances Visibility Accessible Adequate Ambient Lighting Levels Water Source (Municipal/Private) Private Water Source Address: Signature of Resident: Approval Requirements: Insurance Certificate Additional Insurance Requirements Satisfied Hold Harmless Agreement Training: Building the Rink Supply and Proper Use of Equipment Maintenance and Flooding Techniques Daily Inspection Process Managing Risk Health & Safety Managing Competing & Conflicting Uses Volunteer Safety Date Approved: Approved for Operation: Clarington Operations Representative Page 5 of 7
Operations Policy ATTACHMENT 2 Outdoor Ice Skating Rink Daily Inspection Form Date/Time: Volunteer Name: Location: Signature: ITEM Perimeter Boards (if applicable) Ice Surface Condition Picnic Tables Lighting (if applicable) Garbage Cans/Litter Signage Walkways Parking Broken Glass Emergency Access Pole Padding Fencing Other ACCEPTABLE CONDITION NATURE OF DEFECT NOTES: 1) A morning and afternoon daily inspection sheet must be completed and forwarded to Bob Genosko by e-mail at bgenosko@clarington.net or by fax at 905-263-4433. 2) Ice Skating Rink defects shall be reported immediately. Please contact the Municipality of Clarington by e-mail at patrol@clarington.net or by telephone at 905-260-0746. Page 6 of 7
Operations Policy ATTACHMENT 3 Outdoor Ice Skating Rink Signage OUTDOOR ICE SKATING RINK RULES AND REGULATIONS Inspect ice surface prior to use Children should be supervised at all times Helmets and other safety equipment is strongly recommended Alcohol is prohibited Be considerate of others Hours of operation 7:00 a.m. to 9:00 p.m. To report dangerous conditions or any damaged equipment please call: Monday to Friday 8:00 a.m. to 3:30 p.m. 905-263-2291 After hours and weekends 905-260-0746 Page 7 of 7