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HomeMy WebLinkAbout1980-07-24 ReportTO: FROM: DATE: SUBJECT Report #6 R E P O R T Mayor G. B. Rickard and Members of Council Dr. R. McArthur, Chairman of the Master Plan Committee July 24, 1980 Proposed Report on Recommendations Re: Master Plan - Culture $ Recreation This Committee first met on May 21st, 1980 and is presently developing the Terms of Reference for a Culture and Recreation Master Plan. We feel the purpose of the Master Plan is as follows: To reflect the Cultural and. Recreational aspirations of all residents in the Town of Newcastle, recognising the socio-economic, urban and rural trends while remaining flexible and respecting the public's right to praticipation and at the same time gain understanding of their cultural and recreational needs in order to develop Capital Project priorities. In order to accomplish this it would be very helpful if Council would advise this Committee of any new Cultural and/or Recreational projects being considered. If possible, we will analyse these and assess if they are harmonious with the developing Master Plan. The Terms of Reference will include: a) Present inventory of all Cultural and Recreational facilities b) A Demand Inventory. C) A projection of future Cultural and Recreation needs. i I REPORT TO THE COPicNNITY SERVICES, COMMITTEE MEETING OF I FROM: Culture and Recreation Master Plan Committee _ I SUBJECT: Terms of Reference Culture and Recreation Master Plan RECOMMENDATIONS: That the Community Services Committee recommend to Council the following: 1. That this report be received; and that i 2. The Terms of. Reference for the Culture and Recreation Master Plan be approved; and that 3. Council submit an application for funding assistance to i the Ministry of Culture and Recreation; and that i 4. The Culture and Recreation Master Plan Committee be authorized to initiate a proposal call to a short list of consultants, prepared by the Master Plan Committee in consultation with the Ministry of. Culture and Recreation; and that 5. The Culture and Recreation Master Plan Committee report back to Council, upon completion of said proposal call, with an evaluation of all proposals received and further recommendations in respect of the implementing of the Terms of Reference for undertaking; preparation of a Culture and Recreation Master Plan. — 2 — BACKGROUND: 11 On May 5, 1980, Council of the Town of Newenstle confirmed its intention to undertake preparation of a Master Plan for Culture and Recreation by appointing a planning team to prepare the Terms,of Reference for completing a Master Plan and to act as Council's agent in the monitoring and evaluation of the Master Plan process. This planning team, 'which became know as the Culture and Recreation ttaster Plan Committee, was comprised of six members of the public (two from each Ward), two elected representatives from Council and three staff representatives from the Departments of Community Services and Planning. On May 21, 1980, the Master Plan Committee held its first formal meeting to initiate the process of preparing the Terms of Reference for a Culture and Recreation Master Plan. This first meeting revolved around an explanation by Mr. B. Nielsen, Area Consultant for the Ministry of Culture and Recreation, of the need for a Master Plan for Culture and Recreation and the process for developing the Terms of Reference for such a Master Plan. The second meeting of the Master Plan Committee was held on June 4, 1980, and as with the first meeting discussion was centred on familiarizing the Committee members with the task before them and establishing the Committee's parameters for conducting future meetings and for actually commencing preparation of the Terms of Reference. Bas— ically, these parameters established the Committee's work program which involved: (i) identifying significant aspects of Culture and Recreation to be considered; -- 3 - ai (ii) creation of smaller, working, sub -committees to explore these aspects and prepare draft terms of reference for addressing those aspects; (iii) review and discussion of the work of the sub -committees at formal meetings of the ?faster Plan Committee, resulting in amendment and/or adoption of the draft terms of reference or further direction to the subcommittees; and (iv) final review of all terms of reference prepared during this process and preparation of a recommendation to Town Council. This work program was carried out over the course of a ten month period involving a total of fifteen formal meetings of the Master Plan Committee and numerous additional meetings of the various sub -committees appointed throughout the process. During the past few months, the Committee has formalized the Terms of Reference for presentation to Council. This included a consultation process with the Ministry of Culture and Recreation to ensure that the draft Terms of Reference complied with that Ministry's guidelines relative to Master Plan preparation. COMMENTS: As a result of the foregoing process we, as a Committee of Council, have prepared the enclosed Terms of Reference for conducting the preparation of a Culture and Recreation Master Plan. These Terms of Reference have evolved through the hard work and serious commitment of. the Committee members and are now presented for Council's consideration and approval. During the course of our preparation and review of these Terms w of a great deal of discussion was held in respect of the objeFtives of the Master Plan, the scope of the Master i'lan and the ",eat means or preparing the Master Plan. ECJ _ 4 As seen by this Committee the objectives of the Master Plan were multi -faceted and involved: (i) identification of present cultural and recreational resources; (ii) identification of present cultural and recreational needs; (iii) identification of any shortfallin present resources as a reflection of present needs; (iv) projection of future resource needs and priorities; and (v) develop a programme and budget for responding to present resource shortfalls and future resource needs. Similarily, the scope of the Master Plan would also be multi- faceted since it must identify the long term needs of the community while responding to immediate or short term needs in a manner consistent with achieving the Town's long term objectives for culture and recreation. For this reason, it is the Committee's opinion that while the Master Plan's long range projections should be of a scope at least equal to Chat of the Town's evolving District Plan; the Master Plan's programme for implementation should be limited to a scope of five years with an annual monitoring process throughout. At the completion of this five-year period, it would be incumbent upon Council to undertake a review of the Master Plan to ensure the continuing relevancy of its objectives and evaluate its success in meeting those objectives during the short term. Implementation of these Terms of. Reference may he accomplished by.one of two means, in-house by municipal staff, or through the services of a consulting.firm. In both cases, the implementation process would be overseen by the Master Plan Committee as Council's agent. However, it is this Committee's considered opinion that the preferred choice would be to engage a professional consul'-1ng firm. This is not to sav that preparation 9 [�J pa; -s- of a Master Plan is not within the professional capability of municipal staff. But rather, that given the sense of urgency attached to preparing a Master Plan, that alternative would be the most expedient, and possibly the least expensive. The basis for this decision was an evaluation of present staff commitments, possible future limitations on grants available For employing students under the government's Involvement in Municipal Affairs Program and the fact that the 1981 Department Work Programs have, to a certain extent, already been established. While completion of the Master Plan could be done in—house, it could result in a strain upon municipal, resources, and possibly would not be initiated until 1982 thus further delaying a municipal response to an already identified need. We would note, however, that as a result of our discussions with Ministry of Culture and Recreation staff, and their review of the first draft of the Terms of Reference, it is their feeling that implementation of such an indepth study could be expensive and that the detailed inventories requested by the Terms of Reference, while related to the study could be undertaken by summer students, in the employ of the Community Services Department, thus resulting in reduced costs. Council, therefore, may wish to consider such an alternative at such time os the consultants' proposals have been received and assessed. CONCLUSION: Based upon the foregoing, it is suggested that Council give .mediate consideration to the attached Terms of Reference for preparing Culture and Recreation Master Plan; that Council submit an application to the Ministry of Culture and Recreation for eligible funding; that the Master Plan Committee be authorized to initiate a consultant proposal call for implementing the Terms of Reference; that the Master Plan Committee review result of that proposal and recommend selection of a consultant to Council; and that upon approval of the Town's application enter into a contract with the selected consultant and initiate preparation of the Culture and Recreation Master Plan. PURPOSE: TERMS OF-RF.FF.RENCE The purpose of undertaking the preparation of a Culture and Recreation Diaster Plan is to formulate a plan for satisfying the cultural and recreational needs of the residents of the Town of Newcastle. The Plan, when complete, should recognize the socio-economic, urban and rural trends while at the same time maintaining a degree of flexibility in satisfying those trends and respecting the public's rights to participation in the planning for and provision of cultural and recreational services. The Plan should also attempt to identify and gain an understanding of the Town's future cultural and recreational needs and aspirations in order to develop priorities for Capital Project proposals. BASIS: Due to changing population structure in the Town of Newcastle; changing interests and attitudes towards cultureand recreation; increasing costs of transportation; increasing maintenance, operation and construction costs, it has become more and more apparent to the Council of the Town of Newcastle that a Master Plan for Culture and Recreation is needed for the Town. In that regard, public and private funds, available for cultural and recreationalservices, must be put to the highest and best use. It is essential that existing facilities and programmes be used to their maximum capabilities; and that future facilities, programmes and open space be developed in a harmonious and complementary manner to existing services and integrated with them to their mutual advantage. In addition to these obvious reasons for developing a long range Funding. Ma: r Plan for Culture and Recreation, a Master Plan would vastly improve the Town's eligibility for capital project grants available through Wintario Funding. 2 - BACKGROUND: On January 1, 1974 the Regional Municipality of Durham became a reality. Under the terms of Regional Government enabling legislation, the Town of Newcastle was created, amalgamating the former Townships of Clarke and Darlington, the former Town of Bowmanville and the former Village of Newcastle, which had each been responsible, in one way or another, for the provision and administration of the many municipal services. Among these services were cultural and recreational facilities and programmes. Similarly, the various municipalities relied, to a great extent, upon volunteer services and fund raising in order to support their various recreational activities and needs. There was also a great deal of interaction between the residents of the various municipalities and a sharing of facilities, programmes and information was common. However, as a result of the amalgamation, the once separate administration of cultural and recreational. facilities became the responsibility of one Municipality, being the Town'of Newcastle. To this end, the Department of Community Services was created to oversee the provisions of these facilities and services. Under the direction of the Community Services Department, a more organized system was established to co-ordinate recreation throughout the Town. A close liaison was established with the Boards of Education and inventories of existing Town and Board facilities and programmes prepared upon which the provision of new facilities and upgrading of existing facilities was begun. Each year,. additional responsibilities fall to the Community Services Department and, through their records and observations, they have made Council aware of the uneven distribution of some fncilittes and programmes, plus a need, in other areas, for some additional facilities and programmes. 110) - 3 - The transition has been slow but gradually more and more community groups and organizations have begun to accept the new system and have consulted with Community Services for advice and assistance, both physical and financial. However, volunteers and fund rnising still. remain an important aspect of providing needed facilities. In fact, many of the Town's communities still maintain and operate their own facilities and programmes with minimal assistance and maximum encouragement from the Municipality. It is in this spirit of co-operation and recognition of the diversity of needs among the Town's various communities, that Council decided to undertake the preparation of a Culture and Recreation Master Plan, to identify these local needs and aspirations and guide Council in its allocation of the funds necessary to implement a planned programme for responding to these needs in a manner consistent with the best interests of the Town as a whole. On Play 5, 1980, the cc) nncIL of the Town of Newcastle con flrmcd their intentions by appointing a Committee to prepare the Terms of Reference for completing a Culture and Recreation Master Plan and to act as Council's agent in the monitoring and evaluation of the Master Plan preparation and all inherent processes.. To this end, the Culture and Recreation Master flan Committee has prepared the following Terms of Reference to be submitted to and approved by Council. FIRST TERM OF REFERENCE: SUPPLY INVENTORY The purpose of this term of reference is to establish the parameters for the preparation of an inventory of the Town's existing; supply of culture and recreation facilities and programme. Part 1 of this term of reference dams with the fnc:ilities to be inventoried and the information to be obtainal in respect of these facilities. Mt:,V -nt 1 identifies t`general ,groupings of Facilities within two sub categories, "Land" and"Buildings". Attachment 2 details all information required in respect of each facility. Attachments 3(a), 3(b) and 3(c) are sample summary sheets and are intended as examples of the comprehensive cataloging required for each grouping of facilities. Part 2 of this term of reference deals with programmes to be inventoried and the information to be obtained in respect of them. The consultants will be required to inventory the extent of existing recreational', educational (over and above normal curriculum of school boards) and cultural programmes being offered within the municipality by public or private agencies and organizations or services clubs etc. Consideration should also be given to identifying programmes designed for specific or special minority groups such as handicapped, shut ins etc. Attachment 4 is a sample summary sheet which is also intended as an example of the comprehensive detaiLin{; required in respect of programmes. All applicable municipalrecords,documents and ril.(�s will. be made available to the consultants for their review and use for the duration of the Master Plan prepration. In addition, key municipal staff will be available to provide additional direction, explanations or information in respect of various phases of the study. Although Attachments) to 4 inclusive provide a basis for undertaking the supply inventory, the consultants may wish to present alternative suggestions on recording data in a manner which permits ease of retrieval. SECOND TER11 OF REFERENCE: DEMAND INVENTORY This term of reference is intended to gauge the demand and `4revo,w - trends in the culture and recreational needs of the Town of Newcastle's rV31flents. Once established this information will be utilized to assess the 70"'s present let el of service and to project future levels of service required i 5 _ to meet the Town's anticipated population growth. Owing to the nature of the information required, as many people as possible should be surveyed. This should also ensure a response representative of the Town as a whole. In that regard, the information to be obtained must, of necessity, include relevant date about the age, sex and location of the respondents in order to permit an assessment of the statistical validity of the information obtained. Attachments 5.lists the information which will he required to accurately measure the demand for recreation and cultural facilities at the present point in time. This list is intended as a basis for the preparation of a questionnaire to be administered to every household within the Town of Newcastle. Such a questionnaire will have the two—fold purpose of obtaining the necessary information and securing public involvement in the preparation of the Culture and Recreation toaster flan. The consultant may also wish to suggest additional methods for determining demand for culture and recreation facilities which would supplement the questionnaire and which would Involve local Leisure organizations, service clubs, elected officials, municipal staff, hall board, etc.; and which would assist the municipality in determining the aspirations and roles of such „roupn in respect of culture and recreation. THIRD TERM OF REFERENCE: EVALUATION AND RECOMNENDATTONS It is the intent of this term of reference to provide the parameters for evaluating information and data compiled in respect of the first two terms of reference and for formulating specific recommendations in respect of L�Uure and recreation facility and programme delivery. 6 — Evaluation of the data shquld identify the following: 1. Present level of service 2. Adequacy of the present level of service relative to the priorities of the public 3. Level of service required to meet present demand 4. Priorities for resolving present inadequacies in programmes and facilities if any 5. Forecast of future facility and programme needs based upon present trends and anticipated population growth and make—up 6. Priorities for meeting future needs 7. 5 year programme and budget forecast for municipal response to; a) present inadequacies if any; b) future needs which addresses such things as municipal staffing, maintenance, opera Lions, capital construction, land acquisition and debt retirement. FOURTH TERM OF REFERENCE: GOALS, OBJECTIVES AND POLICIES It is the intent of this term of reference to identify those areas or matters which require definition of goals, objectives and policies cons is tent with. the projection and implementation of: a programme intended to rectify present deficiencies if any and satisfy future demands in respect of culture and recreation facilities and programmes as identified by the terms of reference. Attachment 6 lists those matters to be addressed and for which polo ies should be developed. PI1 TERM OF REFERENCE: STATEMENT OF AUTHORITY The Culture and Recreation Haster 1'1un, when completed, should include a Statement of Authority which expresses the intent of Coiinr_il. to adopt the EIGHTH TERM OF REFERENCE: IMPLEMENTATION This term of reference is intended to define specific matters to be addressed by the consultants during implementation of the study. Submissions by consultants for conducting the study and preparing a Culture and Recreation Master Plan should address the following: Timetable: The proposed timetable for completing the Master Plan in accordance with the .approved Terms of Reference. Council may wish to apply a penalty if study overruns projected timetable. Budget: The proposed budget for completing the Piaster Plan with details of the cost of each phase and personnel to be involved. Meetings: A proposed budget schedule of meetings to be held with the Culture and Recreation Master Plan Committee for the purposes of reviewing the progress of the Plan preparation. A minimum of six meetings wiL1 he required although I.hc'convultnn.Ln mny wish Io propose addiLlonal ❑weLings. 'J'he };ix meetings should coincide with the following tasks. 1) prior to commencing study 2) prior to circulation of questionnaire 3) data collection 4) after evaluation & preliminary conclusions 5) after preparation of first draft of Master Plan 6) after preparation of final documents Each meeting should include written reports to the Master Plan Committee. Public Input: The proposal should include a programme for obtaining public input once a first y% draft of the Hnster PL. -in has been prepared. Proposal: 20 copies of. proposal to be submitted to - ;faster Plan Committee. - 7 - Culture and Recreation Master Plan, by by-law, as Miuil cipal Policy for the Town of Newcastle; and to incorporate, by amendment, appropriate portions of the Master Plan within the District Plan for the 'town of Newcastle. - SIXTH TERM OF REFERENCE: MASTER PLAN REVIEW The Culture and Recreation Master Plan should be prepared in such a manner as to facilitate an annual review and monitoring of the objectives and implementation of the Master Plan, by an appointment Committee of. Council; and a five year comprehensive review and amendment as may be necessary. Such a comprehensive review to be undertaken by a specifically created and appointed Committee of Council. SEVENTH TERM OF REFERENCE: DOCUMENTATION It is the intent. of this term of reference to specify the format and extent of documentation required. Format: Completed documents shall be printed on A4 metric stock. Pound on the short side using the same set up and type face as the t'own's District Plan. Final cover design to be approved by Master Plan Committee. Documentation: Final document should comprise two parts. Part 1t "Background Report" which should include all datA compiled during study as well as conclusions and re- commendations and necessary mapping. Part 2: "Culture and Recreation Master Plan" which should outline a programme for implementing the recommendations of the "Background Report" and the policies to be adopted by Council to facilitate implementation of the programme. Printing: 35 copies each of first draft documents for Committee Members, Council, Department Heads and public review 35 copies of final Background Report 50 copies of final Master Plan .�/ Note: 2 copies of draft to be forwarded to the Ministry of Culture and Recreation as are 3 copies of I inaL report. ATTACf4ENT 1 General Groupings Facility Types Land - open Space Areas as Building - Facilities relating to Culture and Recreation (Public and Private) (Public and Private) parks schools conservation areas churches hydro corridors libraries unopened road allowances museums cemeteries arenas valley lands town halls waterfront community halls golf courses service clubs Zoo institutions marinas 3 ATTACHMENT 2 Information Required Site Indentification: facility name, location, street access Total Site Area Hectares — Utilized Area Hectares i i Un—utilized Area Hectares Physical Constraints/Site Limitations: nature of constraint ie: creeks, overhead wires, casements, zoning etc. Existing Facilities Buildings: age, condition, no. and type of rooms, floor space (sq. m.), ownership, hours used and available, access for handicapped, programs offered, storage, capacity, contacts, user charges, special equipment, and availability of liquor licence. Parking: no. of spaces, surface material, access for handicapped, charges, lighting, hours. Playing Fields: programs, no., type, size, condition, lighting, special equipment, contact, costs, maintenance, constrainsts/limitations. Other: walkways, nature trnils, natural features. u F c G .^ ♦+ n tn "- C cp .-. O U t9 O .. E N N O 0o N U c r c r F. G N O O �+ u u C O U 6 N r1 t7 U 0. V S U G C GL to U L .n v V C U h G` O o O u N O L G 0 ._ .= .H u o •r, u 0 n 0 N u c U G G .^ tn "- cp .-. O •.� C O .. N O 0o r � c r c r •w N O O �+ u u U E E c ao 6 N r1 t7 U 0. V S U G C GL to U L .n v V C U h G` O o O u N O L G 0 ._ .= .H i u 7 u 0 n 0 N oua =mL cam.. G .^ N .. N O u O i! U O V. [ V V C U O U UO G .^ N .. N O u O i! U O Cly _. / 1llilldl['ll%141 J\8/ `'a, U i N N U E Al; U 0 % LL U.1 a c K U EE •ti a, N 0 u n F-� N u •r G u 7 m U n U 7 Suinsos w U N N u m " cn d F m F. ulluos u ti E F. G %n U V1 N V U •.i U a o E N •.1 O G '0 O �o a, N 0 u n F-� S pa(jdeoiptivt{ N v c aoopino U U .xoopui n U M Suinsos N u O 0 N u m " cn 3ttiput 1s m F. ulluos u ti E F. G %n a, N 0 u n F-� n 0 r n U M .w O 0 N ^] CJ N G. N F. N F. G m in O v; ; a o E N \ '0 O �o Gia.. 7 av G w : v, t •� c. cc m cn cn O N N U C ItN 0 O O W p a, N 0 u n F-� n r r n U M .w N ^] CJ N F. N m in ; r N \ '0 O 7 N G w : 7 c. cn cn N N 0 W p N b N U G U r-. t N O O u G O O r ca w w �- •N N �• _ %c a, N 0 u n F-� 4 n r n U N CJ N N m ; r '0 O G .ter i. o O r ! w �- �• _ %c - • vi - o o - - inuiu t:: CJ ' N 0C C�..: �0 4 G % u u w U _, N CA _ N � _G n y c • :r !n rn u U C G I OI N Oki r tiJr1 O .100d C c r' c w � o 0 0 ti cn i 1 u c u 1.1 V: E r. _, N m i H N � _G n y n • :r !n rn J C G OI _, N m i H � _G n y r Gli :r !n rn J C G OI A'1"CA(:Il6lliN'C 3{c) j a m i !J i :r !n rn rr C G O r' J i moi' PROGRAMME NAME: PROGRAMME DESCRIPTION: GENERAL'INFORMATION: LOCATIONS) PROGRAMME OFFERED: CONTACT FOR: INFORMATION (name) REGISTRATION (name) AGENCY RESPONSIBLE FOR ADMINISTRATION: HOURS: (each location) COSTS: (registration) (continuing) SPECIAL EQUIPMENT: OFFERED REQUIRED GENERAL COMMENTS: ATTACHMENT 4 r (phone) (phone) 1 ATTACHMENT 5 Demand Inventory The following represents an outline of the information required from the public in order to establish Newcastle's present Demand Inventory, and shall serve as a basis for formulating a questionnaire to be administered to the Town's residents. Information to be gathered: 1) Age and sex of respondent; 2) Marital status and family structure: e.g. Single, Married, Separated, Divorced, Widow, etc. 3) General location of respondent's residence: A) Rural; lot, concession, geographic township B) Hamlet; hamlet name C) Urban Area; area name and street name 4) Interests of respondents: A) collecting things, e.g. Stamps B) exploring and learning, e.g, crafts C) social activities, e.g. drama, euchre D) participating in sports E) watching sports _ F) other, please specify 5) Mode of transportation used: e.g. walk, private car,. car pool, public transit, cycling 6) How far are respondents willing to travel to take advantage of facilities and/or programs? 7) What facilities and programs do respondents use and participate in respectively? A) Location (in or out of Town) B) Time of year C) Time of day a 7 8) What new facilities.and/or programs would respondents like to see created and would they be willing to pay for the use of these and would they themselves participate? 9) Is there a public awareness of existing facilities and programs? 10) Are the respondents satisfied with the recreation opportunities in this community? very satisfied somewhat satisfied somewhat dissatisfied very dissatisfied no opinion Why do they feel this way? 11) What resource skills a- available in the community? 1' )n a volunteer basis ,:) un a paid basis. 2 - 6 12) What are aspirations of,'and roles of industry in respect of Culture and Recreation? To be determined through a survey conducted in parallel to the survey of the general. public. 13) Open comments of all surveyed, parties. IE ATTACHMENT 6 1. Policies in respect of the provision of parkland and Open Space. This should identify a hierarchy of open Space (this has been done to a certain extent by the District Han) and establish the methodology and priorities for acquiring; 2. Policies governing the types of culture and recreation activities and was associated with the various levels of parkland identified by the heirarchy referred to by point 1 above; 3. Policies in respect of park development, which outline both the Town's responsibilities and the developer's, where dedication is involved. This Statement should address minimum standards for park development including; such things as landscaping, lighting, signage, grading, street frontage, area for each level of open space identified by the hierarchy, percentage of parks to be unstructured; 4. Policies establishing minimum design criteria for parkland. 5. Policies in respect of shared cultural and recreational facilities (schools/parks) and the responsibilities of each party; 6. Policies in respect of leasing; arrangements between the Town and other public agencies such as C.L.O.C.A., Canaraska and Ontario Hydro; for the use of publicly owned land for culture or recreational purposes; 7. Policies in respect of the role of private sector and its - involvement in the provision of culture and recreation opportunities; 8. Policies defining the roles of the various agencies, citizens groups, service clubs and hall boards involved in the provision and delivery of recreation and cultural services; 9. Policies in respect of municipal grants and funding for the provision of culture and recreation opportunities; 10. Policies establishing recreation facility standards, functional hierarchy of parks and a. per capita parkland standard; 11. Policies in respect of public participation in the development of public open space; 12. Policies in respect of establishing; and updating; cultural and recreational facility and program priorities; 13. Policies in respect of the acquisition and development of parkland within industrial areas; 14. Policies in respect of user nay cultural and recreational facilities.