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Staff Report
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Report To: General Government Committee Report Number: CSD-009-19
Date of Meeting: October 15, 2019 By-law Number:
Submitted By: George Acorn, Acting Director of Community Services
Reviewed By: Andrew C. Allison, CAO
File Number:
Report Subject: South Bowmanville Recreation Centre
Recommendations:
Resolution#: GG-458-19, GG-459-19 &
GG-465-19
1. That Report CSD-009-19 be received;
2. That Council approve the proposed facility program as presented;
3. That Council refer the proposed Phase I project budget of $48,005,300 to the 2020
budget deliberations;
4. That Council authorize staff to complete the application for funding for this project as
prescribed in the Investing in Canada Infrastructure Program; and
5. That all interested parties listed in Report CSD-009-19 and any delegations be
advised of Council's decision.
Municipality of Clarington
Report CSD-009-19
Report Overview
Page 2
In response to one of the Strategic Priorities adopted by Council for the 2019 — 2022 Term,
staff are reporting on a proposed facility program for the South Bowmanville Recreation
Centre. After engaging our key stakeholders and the general public, Council is being
presented a two phase facility construction plan that will address the growing needs of our
community for recreation and leisure activities. The timing of this report coincides with an
infrastructure funding opportunity that could leverage municipal funds with provincial and
federal assistance to provide great value to the taxpayers of Clarington.
1. Background
1.1 At the January 23, 2017 General Government Committee meeting, Report CSD-001-17
was presented, introducing the Indoor Facilities Development Strategy (Strategy). This
Strategy addressed the need to develop a comprehensive facility development plan to
identify future facility needs based on growth of the Municipality, changing demographics
and evolving recreation and leisure trends in our community. The scope of the study was
to look at the facility needs of Clarington to 2031.
1.2 The purpose of this Strategy was to provide both Council and staff a reference to plan for
indoor recreation facility development with a longer term vision that strategically meets
the needs of our residents for that timeframe.
1.3 The Strategic Priorities and Goals for the 2019 to 2022 term of Council included the
following goal; "Develop the concept, financing, project plan and potential construction
schedule for the South Bowmanville Recreation Centre for Council in 2019, for
consideration in the 2020 budget, with a design to follow".
1.4 To accomplish this goal a project team was created, made up of Community Services
staff and Robert Lockhart of the Rethink Group (the Project Team). The work of the team
included: providing an update of the data and findings of the earlier Strategy, conducting
public engagement, holding meetings with key stakeholders and Community Services
staff. The objective was to present to Council, a facility program that would provide an
outline for the design of a recreation facility based on the feedback of the general public,
major indoor facility user groups and staff.
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Report CSD-009-19
2. Public and User Group Engagement
2.1 In June, the Project Team scheduled meetings with facility users to gather feedback on
their program and facility needs, to better inform the team on what the future needs are in
our community from their perspective.
2.2 One meeting focused on our major ice user organizations. Groups in attendance were:
Clarington Minor Hockey Association, Clarington Girls Hockey Association and Clarington
Zone AAA Hockey Association. The focus of this meeting was to discuss current and
future demand for ice and whether or not their program would benefit from the
construction of additional ice pads. A representative from the Newcastle Memorial Arena
Board and one of our local hockey development operators also attended.
2.3 All meeting attendees indicated they currently purchase significant amounts of ice time
outside of Clarington in order to satisfy the needs of their current programs. The lack of
prime time ice prevents any expansion of on -ice programs such as player skill
development. The organizations indicated they would move this additional ice back to
Clarington if ice time is available. Although not specifically stated at this meeting, staff
have received ice allocation requests from Newcastle Village Minor Hockey in past years.
It is anticipated additional ice pads in South Bowmanville would satisfy all of the above
noted ice needs.
2.4 Another meeting focused on a broader group and was attended by: Clarington Swim
Club, Clarington Squash Club, Clarington Minor Lacrosse Association, Clarington Green
Gaels Lacrosse, and Autism Home Base Durham. Discussions with the groups included
whether their current access to space met their operating requirements and if there was a
potential for future growth should access to space increase.
2.5 Clarington Minor Lacrosse advised staff they operate a winter lacrosse program at the
Children's Arena in Oshawa. They would move the program to Clarington if floor time was
available during the fall and winter months. This may be feasible at a future date when
the Darlington Sports Centre has reached the end of useful life as an arena facility.
2.6 Clarington Swim Club expressed a desire to expand their program in the future. They
currently rent 17 hours of pool time per week and would like to increase this to 27 hours,
over a number of years. If a new swimming pool is constructed and the Club were to
relocate, they would no longer have any need for pool time at the Alan Strike Aquatic and
Squash Centre.
2.7 Clarington Squash Club expressed an interest in seeing new courts being included in a
new facility, ideally four single courts and two doubles courts. They stated a need for a
lounge facility (suitable for alcohol events) and for club -style change facilities. This would
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allow them to host larger tournaments. If new courts were added, they would no longer
have a need for the two courts at the Alan Strike Aquatic and Squash Centre.
2.8 On June 18, 2019, a Community Forum was hosted at the Garnet B. Rickard Recreation
Complex, to gather input from residents and stakeholders on their thoughts about the
proposed South Bowmanville Recreation Centre. Approximately 90 people attended the
session and were organized into 11 discussion groups. After a presentation of
background information, delegates participated in small group discussions.
2.9 The format of the Forum was a facilitated round table discussion. The conversation
focused on three predetermined questions, provided to each table. There were a number
of themes that emerged. These themes pointed to the most important facility
components to those in attendance being:
- Indoor Ice
- Swimming Pools
- Fitness=ellness
- Multipurpose Program/Community Space
- Gymnasium
2.10 It is important to note that there were mixed feelings about a Library Branch, however,
this appeared to be based on confusion surrounding the future of the main branch in
Bowmanville. According to the Clarington Public Library (CPL), the plan is to establish a
branch location at this facility in addition to their main library in downtown Bowmanville.
2.11 Additionally, with the assistance of our Communications Office, the Engage Clarington
web page was used to add an on-line survey providing an opportunity for residents who
could not attend the Community Forum to provide input on what is most needed at this
facility. The survey was active from June 8 to July 9. There were 2,177 respondents that
completed the survey. Since the intent of the survey was to solicit general feedback from
residents across the Municipality we did not collect information on where respondents
lived or their demographic profile.
2.12 The survey was limited to two questions to increase the response rate. Question 1 asked
about the respondent's degree of agreement/disagreement with the key facility
components that were emerging for the proposed facility. Question 2 asked about other
desired amenities and features to be considered. 872 respondents provided an answer
to this question.
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2.13 Lastly, a workshop was held with the Community Services management/supervisory
team, which represented all areas of the Department. There was robust discussion on
what the possible facility components should be and what, from a staff perspective, were
important factors to consider. Some of the important comments from this session include:
- The need to provide flexible program and community activity space and not
dedicated space for any one age cohort or group. This would help to maximize
access and facility usage.
- The potential impact of adding additional swimming pools should be fully evaluated.
Currently, pools are not fully utilized. The addition of a pool could further spread out
usage, specifically in the case of the Alan Strike Aquatic and Squash Centre.
Further, there is a regional and province -wide challenge in attracting aquatic staff.
Would we be able, in the short term, to adequately staff four aquatic facilities?
- There is an increasing demand for public skating programs. Due to the demand for
prime time ice, the majority of our "drop -in" skating programs run Monday — Friday
during the daytime. There is a growing demand to expand our programs and offer
more options in the evenings and on weekends.
- With the current demand on prime time ice, it is difficult to promote sport tourism and
attract larger events such as hockey tournaments and skating competitions. The
impact these events have on regular programming, due to cancellations, is a
challenge for our ice users.
- There was agreement that minor sports organizations do not have adequate ice time
to properly run their programs and provide opportunities to expand.
- Would there be an impact on existing membership numbers at Courtice Community
Complex fitness centre if a new facility was included in South Bowmanville? Would
we increase our number of members or disperse existing members across two
facilities?
- Is the private sector adequately servicing the fitness needs of our residents,
especially in the immediate area of the proposed facility?
- The need for a walking or running track is regularly expressed by the community to
staff.
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Major Findings
2.14 Following the extensive community engagement and staff consultation, the conclusions
regarding what is needed in this new recreation centre confirm the findings of the
previous Strategy. We did hear some unique ideas such as including an area for children
attending sibling hockey games to play in, creating a space where community members
feel comfortable gathering, creating multi -purpose space that encourages arts and culture
programming, and the need to provide inclusive spaces such as gender neutral change
rooms and washrooms.
2.15 There is a pent up demand for ice time from our minor sport organizations, as supported
by their need to contract ice outside of the Municipality. This trend is expected to continue
as our population grows.
2.16 While important to identify the needs expressed for a new facility, it is also important to
evaluate and assess demand indicators, trends and other considerations prior to making
the decision to move forward on any particular component. For example, although the
need for a new swimming pool ranked fairly high through the engagement discussions,
usage and other factors need to be considered. Similarly, a fitness/wellness centre was
also popular, however, further investigation is needed before expanding into the
Bowmanville area.
3. Proposed Facility Program — Phase 1
3.1 The proposed program for Phase I, as outlined below, represents the recommendations
of the Project Team.
Twin Pad Arena
3.2 The proposed program includes a twin pad arena facility consisting of two NHL sized ice
surfaces, associated dressing rooms for players and officials, a pre -game warm up area,
storage rooms and spectator seating for each ice pad in the range of 250-300.
3.3 The provision of two additional ice pads will address the pent up demand for additional
ice from both the general public and major sport organizations. As previously stated, a
significant amount of ice is being contracted outside of the Municipality. Not only is this
preventing expansion in some areas of their programs, the lack of prime time ice is
impacting the ability to deliver municipally operated programs.
3.4 The addition of two ice pads will assist staff with the allocation of ice for all residents of
Clarington. In the past we have received ice requests from the Newcastle Village Minor
Hockey Association that unfortunately we were not able to accommodate. During recent
discussions with representatives of the Newcastle Arena Board we restated our desire to
work with them to address any ice time shortages they may have.
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3.5 As indicated, the addition of two ice pads would enable the Municipality to attract new,
larger special events. This has a positive economic impact through sport tourism and is a
fantastic way to promote Clarington. Currently to achieve this, ice users are negatively
impacted, so there has been a movement away from special events. Staff are confident
these additional ice pads will allow us to grow this area of our business.
Indoor Walking Track
3.6 The proposed program includes a minimum three lane rubber floor indoor walking track.
Although the final design will need to be confirmed, it is anticipated this walking track will
be constructed in the upper level perimeter of the gymnasium. For this reason the length
of the track has not been determined. The space could include a warm-up area and other
fitness/wellness features.
3.7 Although this does not represent a major facility component in terms of capital cost, the
demand for year-round access to walking, regardless of outdoor weather conditions, has
been heard from many of our residents and that this amenity should be considered for
major recreation facility expansion plans in the future.
Gymnasium
3.8 The facility program includes a 10,000 square foot gymnasium that can be dividable into
sections with curtain partitions, access to change room facilities, storage and viewing in
adjacent lobby area.
3.9 The Municipality operates only one full-sized gymnasium located at the Diane Hamre
Recreation Complex. The remainder of the gymnasium based programs and activities are
located in school gymnasiums. Access to school gyms is limited to non -school hours and
school based needs are given priority for space. Although a rare occurrence, we recently
experienced cancellation of school permits due to a labour dispute at area schools.
3.10 Through the engagement process we heard the need to provide flexible use space for a
wide variety of activities. A gymnasium will satisfy this need effectively. This space will
provide early childhood physical literacy skills, increased opportunities for older adult
daytime active sport programming, after school activities as well as various youth and
adult sport drop -ins and programs. Based on the demand for space at Diane Hamre, staff
are confident this will be a valuable addition to this facility.
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Report CSD-009-19
Multi -Purpose Community and Programming Space
Page 8
3.11 The facility program includes 6,000 square feet of flexible multi -purpose space, storage
for both Department programs and community groups, a teaching style kitchen facility
and space for floor -based fitness programs.
3.12 It is necessary to include multi -purpose programming space in all facility developments.
The facility will be well served by spaces that satisfy the needs of a recreation centre and
also create the atmosphere of a "Community Hub".
3.13 The program will not include dedicated space for community groups or specific activities,
however, access to kitchen facilities and storage space will allow groups to call the space
`home" when they are in the facility. This will also maximum utilization for daytime and
evening use seven days per week.
Community Services Administrative Office Space and Tourism Office
3.14 In addition to the office and administrative space required for the staff who will be working
in the facility, the program includes 2,700 square feet for the relocation of the
Department's administration staff from 40 Temperance Street, and senior staff currently
working at other facilities.
3.15 In addition to freeing up office space at 40 Temperance Street, this move would allow the
Director and Managers to be closer to our customers, take advantage of efficiencies and
to work closer with their team.
3.16 This facility will not only serve the recreation needs of our residents but will also serve as
a "Community Hub". The facility will also attract a number of out of town visitors who are
here for various sporting events and other activities. For these reasons we are proposing
the Clarington Tourism operations relocate to this facility. We very much see the synergy
between recreation/leisure and tourism and believe this relocation would be a great
addition to the facility.
Branch Library
3.17 At the May 22, 2019 Board Meeting the following resolution was adopted:
Motion LB048-19, "That the Clarington Public Library Board express interest to the
Municipality of Clarington to provide library services at the Bowmanville South location"
3.18 Community Services staff have met with Clarington Public Library staff to discuss
preliminary requirements for a branch library. Based on the size of branch locations in
Newcastle and Courtice it was discussed a branch location at this facility would be in the
10,000 — 12,000 square foot range.
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3.19 The proposed program includes a 10,000 square foot library branch that will offer a full
range of public library services including: lending services; a dedicated children's space,
program, cultural and educational opportunities; and collaborative creation spaces. The
branch in this facility is considered an adjunct (not a replacement) to the main
Bowmanville Branch on Church Street.
3.20 The proposed branch is envisioned as a flagship for creativity and technology by offering
services that will support lifelong learning and engagement with STEM (Science,
Technology, Engineering, and Mathematics) by way of coding activities and digital
creation tools, such as a 3D printer. The Library will provide programming opportunities
for residents which will support design -centred, computational thinking through a
combination of education and self -directed exploration.
3.21 The branch will include semi -private workspaces/study rooms that can be used for
individual silent study or small group work. Library programming will be conducted in the
facility's joint multi -use programming and community room.
3.22 In 2020 the Library will incorporate museum and archive services into its mandate. The
proposed branch could include a museum and archives exhibits to promote local history
and culture.
3.23 The provincial benchmark for library facility square footage is 0.6 square feet per capita.
Using this benchmark and the 2016 Clarington census population data, Clarington Public
Library has a facility shortfall of 6,504 square feet; this does not include past or future
population growth. The calculation can be seen in the chart below.
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Library Facility Needs (sq. ft.)
*(based on 0.6 square feet per capita guidelines)
55,208
Current Library Facility Offerings
Size (sq. ft.)
Bowmanville
24,000
Courtice
12,000
Newcastle
9,100
Orono
3,604
Total
48,704
Library Facility Shortfall (2016)
6,504
*2016 Census Clarington Population 92,013
4. Proposed Facility Program — Phase 2
4.1 Throughout the community engagement process, both an aquatic facility and a
fitness/wellness centre were well received by our user groups and the public and should
be included in the South Bowmanville facility. The Project Team had to not only consider
the responses from the public but also had to consider the demand indicators and staff
input on the current state of the potential facility components. Consideration of the total
project cost has determined this facility needs to be developed in two phases. Once this
decision was made, the Team identified what components would be proposed for Phase
II. The timing on the Phase II project has not been confirmed but based on the 2017
Strategy the aquatic facility was identified for 2029.
Aquatic Facility
4.2 The proposed program includes a 25 metre, 8 lane main pool tank, a large therapeutic
pool, supervisor/lifeguard office, on deck storage, a large family change room as well as
good sized male and female change rooms. The family change room will have barrier
free change facilities and all change rooms will have universal design washrooms.
4.3 Based on the current usage of our three indoor swimming pools, it is anticipated the
existing supply will satisfy the needs of the community for the next 4-7 years. The 2017
Indoor Facilities Strategy proposed a renovation at the Courtice Community Complex to
commence design in 2024, which would expand the swimming pool area to the west,
providing a larger warm water pool that would enhance younger children's learn to swim
programs and therapeutic uses. With a reconfiguration of the existing pool change rooms,
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this project should create pool capacity that will sustain the demand until a decision is
made on an aquatic facility for South Bowmanville in the 2028/29 timeframe.
4.4 In 2015, a significant renovation was completed at the Alan Strike Aquatic and Squash
Centre. In addition to immediate improvements to accessibility and public viewing, the
improvements to the filtration, mechanical and electrical systems will extend the Iifecycle
of this facility for 10 — 15 years. At such time as a new aquatic facility is constructed, the
need for the Alan Strike facility would drastically diminish and a decision on the future of
the building would be required. There was some discussion at the Community Forum and
in the on-line survey regarding the need for a 50 metre pool for Clarington. This type of
facility would exceed the needs of our local community and would be considered a
regional or provincial level type of facility, expensive to construct and to operate. This
type of facility is not recommended for this facility.
Fitness/Wellness Space
4.5 The proposed program includes a total of 8,000 square feet for aerobic, strength and
conditioning, and spinning areas, change room facilities, assessment and storage rooms.
4.6 A centrally located fitness facility would be beneficial to the delivery of fitness services to
our community, however, in the shorter term, we are concerned about the impact this
would have on our existing membership base at Courtice Complex. Our membership
base has remained relatively steady over recent years and staff agree that the current
facility could accommodate increased memberships.
4.7 The Department does reach out to the entire community by offering a wide variety of
fitness and wellness classes in most of our recreation facilities. This will continue through
the offering of programs in the multi -purpose program space in Phase I of this project.
There are also examples where equipment based opportunities have been incorporated
into other areas of recreation facilities. A good example would be to provide treadmills
and bikes adjacent to a walking track. This will be a consideration during the design
phase of the new facility.
4.8 The provision of fitness facilities by Clarington is an area that is also serviced by the
private sector. An existing Council resolution prevents development of municipal fitness
centres and this must be reconsidered before moving forward with a fitness/wellness
centre in this facility. Deferring this component to the second phase will allow staff to
gauge the impact of population growth and the ability of the private fitness operators to
satisfy the needs of the community.
5. Proposed Facility — Phase I and II Capital Costs
5.1 The summary of the total cost of the Phase 1 program is provided below. More details of
the proposed budget can be found in Attachment 1. As the project costs will be shared
Municipality of Clarington
Report CSD-009-19
between Community Services and Clarington Public Library, and will be financed
separately, the total cost and the individual costs are provided.
Total Phase I Proiect Costs:
Construction $42,100,000
Design/Engineering/Project Management 4,200,000
Furnishings and Equipment 1,705,300
Total $48,005,300
Recreation Facilitv Costs:
Construction $36,969,750
Design/Engineering/Project Management 3,843,000
Furnishings and Equipment 1,500,000
Total $42,312,750
Branch Library Costs:
Construction $ 5,130,250
Design/Engineering/Project Management 357,000
Furnishing and Equipment 205,300
Total $ 5,692,550
Page 12
5.2 The summary of the total cost of the Phase II program is provided below. More details of
the proposed budget can be found in Attachment 1.
Phase II Proiect Costs:
Construction $16,600,000
Design/Engineering/Project Management 1,660,000
Furnishings and Equipment 650,000
Total $18,910,000
Please note that no financing calculations have been provided for Phase II capital costs.
6. Proposed Facility — Operating Costs
6.1 A detailed operating budget for the proposed Phase I project has not been finalized at
this time. Based on the preliminary work to date, it is estimated that the components of
the facility (excluding library operations) would generate in the $1.OM range annually. In
addition, the existing indoor soccer facility annual revenues are $150,000 and they are
expected to grow following this expansion.
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6.2 Consideration will also be given to alternative sources of funding for this facility, either to
contribute to the capital costs or to the annual operating costs. This could include facility
naming rights or sponsorships as well as instituting a surcharge on rentals and activities.
Both of these revenue opportunities are used successfully in other Durham area
municipalities.
6.3 In addition to the obvious partnership with CPL at this facility, staff will also look to partner
with the private sector and/or local community groups to lease space to offer
complementary services to the facility. This would provide a source of additional revenue.
Examples of this could include pro shop and food services.
6.4 Staffing costs will represent the largest component of this facility's annual operating
budget (excluding debt servicing charges). When constructed this would be the largest
recreation facility in Clarington, and would require adequate staffing levels to both
maintain the high quality of facility standards and deliver the best programs and services,
expected by our community. The proposed staffing plan is still to be developed.
6.5 As utility costs represent the second largest impact to operating a facility, it will be
important to control those costs. This will done by adopting energy efficiency principles in
the design phase of the project, as well as in our operating practices. As noted below,
funding applications will be judged on meeting or exceeding published energy efficiency
standards.
6.6 Community Services staff will continue to work on a proposed operating plan and will
provide this to Council in advance of the 2020 budget deliberations as these costs would
need to be identified in our four-year operating budget forecast.
7. Investing in Canada Infrastructure Program
7.1 On September 3, 2019, the Province announced they were accepting applications for
funding of projects under the Investing in Canada Infrastructure Program (ICIP),
Community, Culture and Recreation stream. Approximately $470 million in federal
funding and $320 million in provincial funding will be available in this stream over 10
years commencing in 2019. In addition to the current intake, a second intake is
anticipated in 2021.
7.2 Priority will be given to projects that are community -oriented, non-commercial and open
to the public. In addition, projects will be judged in terms of meeting or exceeding the
highest published standards for your jurisdiction, in terms of accessibility and energy
efficiency.
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7.3 The deadline date for submissions is November 12, 2019. The program calls for a two-
step evaluation process. Initially, the Province will receive all applications for review. The
Province will notify applicants if their project has been selected for nomination to the
federal government for review and approval. This is estimated to occur in winter 2020.
Applicants will be notified of the federal funding decisions in spring/summer 2020, also
estimated.
7.4 Based on a review of the program guidelines, staff have determined that all associated
costs for the design and construction of the facility expansion, as presented in this report,
would be eligible costs and subject to the funding formula outlined in the program. The
cost sharing formula (maximum for Federal and Provincial contributions, and minimum for
municipal contributions) for all eligible costs is as follows:
Federal Contribution 40.00%
Provincial Contribution 33.33%
Municipal Contribution 26.67%
8. Potential Construction Schedule
8.1 The initial project schedule we were working towards needed to be revised due the
timelines set out by the provincial and federal government for their infrastructure funding
program. As indicated earlier in the report, a final decision on funding approval by the
federal government is not expected earlier than the summer of 2020.
8.2 The Key Project Milestones are:
Infrastructure Funding Application
November 12, 2019
Council Capital Budget Approval
January 20, 2020
Infrastructure Funding Approval (estimated)
August 31, 2020
Design Approval (estimated)
June 30, 2021
Construction Contract Award (estimated)
October 15, 2021
Facility Open to Public (estimated)
October 15, 2023
8.3 Should it be the desire of Council to accelerate the project schedule, approval for site
geotechnical work and the facility design could be initiated upon project approval in the
2020 capital budget. However, it should be noted that costs incurred on this project in
advance of receiving federal approval will not be eligible for the cost sharing program.
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9. Construction Methodology
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9.1 The preliminary timelines identified above are based on the traditional Stipulated Price
Contract (Design -Bid -Build). This has been the method used for previous recreation
facility construction. In addition, the Design -Build and more recently Integrated Project
Delivery options could be considered.
9.2 Staff will further investigate these project options to determine what is in the best interest
of the Municipality in terms of value for money, quality of final product and completion
schedule. A decision will be made in advance of the estimated federal funding decision
timeline.
10. Financial Considerations
Capital Costs
10.1 The following provides a breakdown of the proposed costs of Phase 1:
Recreation Component
Construction
$36,969,750
Furniture, Fixtures and Equipment
1,500,000
Design/Engineering/Project Management
3,843,000
Total Recreation
$42,312,750
Library Component
Construction
$5,130,250
Furniture, Fixtures and Equipment
205,300
Design/Engineering/Project Management
357,000
Total Library
$5,692,550
Total Phase 1
Construction
$42,100,000
Furniture, Fixtures and Equipment
1,705,300
Design/Engineering/Project Management
4,200,000
Total Phase 1 Cost
$48,005,300
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Capital Funding Sources
10.2 The Municipality can fund the capital costs related to the South Bowmanville Recreation
Centre through government grants, development charges and sponsorships. It is
important to understand what can be raised through these funding sources because the
shortfall between these funding sources and the capital costs must be funded directly
from the tax levy. There are many unknowns regarding government grants and
development charges that prevent us from calculating what the tax levy impact of this
facility will be.
10.3 The first unknown is the Municipality's application to the Investing in Canada
Infrastructure Program. If successful, the grant could fund up to 73.33%, or $35.2 million,
and the Municipality's share would be $12.8 million, which would be funded through
development charges and the levy.
10.4 The second unknown is the amount that the Municipality will be able to fund through
development charges (DC's). The new provincial act "Bill 108: More Homes, More
Choice Act" will remove the soft -services (Parks, Recreation, Library and Planning
Studies) from development charges and move these services to a Community Benefit
Charge (CBC). The implication of this change is not yet known, as the regulations of the
Act have not been released. It is anticipated that regulations will be released in October
and once released, staff will be able to assess what the impacts will be.
10.5 Given that we do not know how the CBC will be calculated at this time, we will show a
scenario where we are able to collect the same amount as we are able to under the
existing DC framework, and a scenario where this project would not be eligible to be
funded through the CBC.
10.6 Under the current Development Charge (DC) by-law, 90% or $43.2 million of the new
facility could be eligible to be funded through development charges. The remaining 10%
or $4.8 million, would be funded through own source revenues. The eligible amount will
depend on the final scope of the facility and whether there is a benefit to existing or
replacement share. At this time the new facility is not intended to replace existing
facilities.
Financing
10.7 The Region of Durham staff have estimated that the range of interest rates could be from
2.7% to 5.25%. To be conservative, staff have assumed a 20 year debenture at 5.25%.
A lower rate would reduce the impact to the levy.
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10.8 For the recreation component, based on a debenture of $42.3 million, interest costs
would be $22.8 million, totalling $65.1 million. The first year of debt servicing costs would
total $4.3 million.
10.9 The Clarington Public Library share would be $5.7 million of principal plus $3.1 million of
interest, for a total of $8.8 million. The first year of debt servicing costs would be
$580,000.
10.10 The following table shows the impact on the tax levy under four different scenarios. The
scenarios consider whether the grant application is successful and whether the project
will continue to be eligible under the new CBC.
Scenario
Grant
CBC
Recreation
Library
Total
1
No
No
7.60%
1.02%
8.62%
2
No
Yes
0.75%
0.10%
0.85%
3
Yes
No
2.00%
0.27%
2.27%
4
Yes
Yes
0.10%
0.03%
0.13%
10.11 Under Scenario 2 consideration must be given to the Municipality's ability to fund debt
payments through DC's (or Community Benefit Charges). For Indoor Recreation, the
average DC collections since 2015, which have been high growth years, has been $3.5
million. Under Scenario 2, where the project would be CBC eligible, there would be $3.9
million funded through the Indoor Recreation DC reserve fund annually. Without higher
DC collections there would be an annual shortfall of $400,000. The Indoor Recreation
DC reserve fund is in a negative balance of $120,000, and is committed to funding $6.4
million of debt payments between 2019-2024 related to the Diane Hamre Recreation
Complex and the Bowmanville Indoor Soccer Facility.
10.12 Debt servicing costs for Diane Hamre are expected to be complete in 2022. Starting in
2023 these funds can be redirected to the South Bowmanville Recreation Centre debt.
10.13 The average library DC collections have been $550,000 since 2015. Under Scenario 2,
where the project would be CBC eligible, there would be $580,000 funded through the
Library DC reserve fund annually. The Library DC reserve fund has an available balance
of $900,000, but is committed to funding $78,000 debt payments annually related to the
Courtice Library expansion. The current balance could be used to lower the debt
requirements.
Municipality of Clarington
Report CSD-009-19
Operating Impact
Page 18
10.14 Community Services staff will continue to work on a proposed operating plan and will
provide this to Council in advance of the 2020 budget deliberations, as these costs
would need to be identified in the four year operating budget forecast.
Summary and Next Steps
10.15 Without external financial resources such as senior government support and increased
development growth there will be a significant impact to the tax levy. Therefore, it would
be prudent at this time to apply to the Investing in Canada Infrastructure Program and
assess the Municipality's ability to fund the facility once the status of the application is
known.
10.16 Council may consider as part of the 2020 budget deliberations to begin a contribution to
reserve funds to mitigate future debt servicing costs and stabilize potential tax
increases.
10.17 Staff recently began the process to update the Municipality's DC by-law. As part of this
process and once the regulations of Bill 108: More Homes, More Choice Act are
released staff will report back to Council on how the CBC could fund the South
Bowmanville Recreation Centre.
11. Concurrence
This report has been reviewed by the Director of Finance who concurs with the
recommendations.
12. Conclusion
It is respectfully recommended that Council consider the findings of the research and
community engagement completed by staff, with technical assistance from The Rethink
Group, and conclude that the facility components proposed for the 2020 capital budget
will serve our current residents as well as our community.
Staff Contact: George Acorn, Acting Director of Community Services, 905-623-3379 ext. 2502
or gacorn@clarington.net.
Attachments:
Attachment 1 — Feasibility Study for the South Bowmanville Recreation Centre
Interested Parties:
List of Interested Parties available from Department.
Draft Report
Feasibility Study for the South
Bowmanville Recreation Centre
Prepared by:
The Community Services Department, Municipality of Clarington
The Rethink Group, Leisure Services Planning and Management
Lett Architects Inc.
October 2019
Table of Contents
Chapter One: Introduction............................................................................................... 3
1.1 Objectives and Scope............................................................................................ 3
1.2 Methodology.......................................................................................................... 3
1.3 Report Structure.....................................................................................................4
Chapter Two: Planning Context...................................................................................... 5
2.1 Introduction............................................................................................................ 5
2.2 Aligning with Corporate Frameworks..................................................................... 5
2.2.1 Strategic Policy Documents.............................................................................5
2.2.2 Supporting Documents and Policies................................................................ 5
2.3 Community Profile.................................................................................................. 6
2.3.1 Regional Context............................................................................................. 6
2.3.2 Communities within a Community.................................................................... 6
2.3.3 Age Profile....................................................................................................... 7
2.3.4 Income............................................................................................................. 8
2.3.5 Educational Attainment.................................................................................... 9
2.3.6 Ethno-Cultural Characteristics......................................................................... 9
2.3.7 Persons with Disabilities................................................................................ 11
2.4 Anticipated Population Growth and Change........................................................ 12
2.4.1 Changing Age Profile..................................................................................... 13
Chapter Three: Needs Assessment.............................................................................. 15
3.1 Introduction.......................................................................................................... 15
3.2 The Market Area.................................................................................................. 15
3.3 Indoor Recreation Facilities Development Strategy, 2017................................... 15
3.4 Indoor Recreation and Library Facilities............................................................... 17
3.5 Updated Demand Indicators................................................................................ 19
3.5.1 Introduction.................................................................................................... 19
3.5.2 The Community Forum.......................................................... ........................ 20
3.5.3 The Online Household Survey.......................................................................23
3.5.4 Consultation Session with Arena User Groups .............................................. 26
3.5.5 Consultation Session with Other Groups ....................................................... 27
3.5.6 Workshop with Clarington Community Services Staff .................................... 28
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3.5.7 Key Information About Arenas....................................................................... 30
3.5.8 Key Information About Aquatic Facilities........................................................ 32
3.5.9 Key Information About FitnessMellness Facilities ........................................ 32
3.5.10 Other Local Recreation Trends.................................................................... 33
3.5.11 National Leisure Trends Relevant to The Proposed Facility ........................ 33
3.6 Life Cycle Status of Municipality of Clarington Indoor Recreation Facilities......... 34
3.7 Conclusions and Implications for the Proposed Facility ....................................... 35
3.7.1 Current Age Profile........................................................................................ 35
3.7.2 Above Average Household Income............................................................... 35
3.7.3 Anticipated Population Growth and Change .................................................. 36
3.7.4 Aging Infrastructure....................................................................................... 37
3.7.5 Current and Future Demand for Culture and Recreation Facilities ................ 38
3.7.6 Leisure Trends............................................................................................... 39
3.7.7 Recommended Facility Components of the South Bowmanville Recreation
Centre..................................................................................................................... 39
Chapter Four: The Facility Concept.............................................................................. 40
4.1 Introduction.......................................................................................................... 40
4.2 The Site................................................................................................................ 40
4.3 Description of the Proposed Facility and Components ........................................ 43
4.3.1 The Facility Concept.................................................................................. 43
4.3.2 Components of the Proposed Facility............................................................ 47
4.4 Estimate of Capital Cost....................................................................................... 50
4.5 Anticipated Impact of the Proposed Facility on Existing Facilities and Businesses
................................................................................................................................... 51
Appendix A: Reports and Information Reviewed........................................................... 52
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Chapter One: Introduction
1.1 Objectives and Scope
The intent of this study is to update the findings and conclusions of the 2017 Indoor
Recreation Facilities Development Strategy that relate to the proposed South
Bowmanville Recreation Centre. That entailed updating key information about the
current and future community profile, demand for the types of components and features
that may comprise the recreation centre, utilization of relevant facilities, lifecycle status
of older indoor recreation facilities, implications for existing facilities, and any new
facilities and components that are currently under consideration.
The preferred components and characteristics of the proposed facility will be identified,
and a conceptual facility and site plan was prepared, along with an estimate of capital
cost.
Separate to this work, Community Services staff will continue to develop an operating
budget for the proposed facility program, options to a preferred method of design and
construction, an assessment of the ability of the Municipality to build and operate the
facility, the financing strategy, and next steps and anticipated timeline for
implementation. These deliverables are not included in this report.
1.2 Methodology
A `scoped' approach is being undertaken to test and refine the concept for the proposed
South Bowmanville Recreation Centre against the recommendations contained in the
Indoor Recreation Facilities Development Strategy and to assess the feasibility of
the facility. A good deal of information was collected and integrated to reach the
conclusions and develop the recommendations contained in the 2017 strategy that
relate to the proposed South Bowmanville Recreation Centre.
This study updated and added to the original research about supply, local demand and
trends. On June 18, 2019, a Community Forum was hosted that engaged over 80
stakeholder groups and community residents. The intent of the Forum was to evaluate
the emerging facility concept and provide suggestions to further advance the concept.
The municipal website was used to provide information about the study. An on-line
household survey was hosted on the web site from late June into early July that
mirrored the questions discussed at the Community Forum. Refer to Section 3.5.2 and
3.5.3 for the results of the Community Forum and the household survey.
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On June 13, 2019, a session was held with Community Services Department staff to
augment information being collected about local demand and trends — and to provide
further input into the evolving facility concept.
Once the facility and site concept were finalized, capital costs were estimated as
outlined under objectives and scope.
1.3 Report Structure
The report is organized into four chapters and one appendix as follows:
Chapter One: Introduction
Chapter Two: Planning Context
Chapter Three: Needs Assessment
Chapter Four: The Facility Concept
Appendix A: Reports and Information Reviewed
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Chapter Two: Planning Context
2.1 Introduction
This chapter identifies key strategies and studies that were reviewed, describes the
profile of the community, as well as anticipated population growth and change.
2.2 Aligning with Corporate Frameworks
Since the intent of this report is to update and advance the research, findings and
recommendations of the 2017 Indoor Recreation Facilities Development Strategy,
the strategic policy documents and supporting documents and policies that were
reviewed for that study have been repeated below, along with other key documents that
were reviewed for this update.
2.2.1 Strategic Policy Documents
■ Municipality of Clarington Strategic Plan (2015-2018)
■ 2015 Municipality of Clarington Development Charges and Background Study
■ Consolidated 2014 Municipality of Clarington Official Plan (adopted November 2016)
■ Comparison Guide for Proposed Changes to the Official Plan
■ Municipality of Clarington Community Services Strategic Plan
■ Indoor Recreation Facilities Development Strategy, 2017
2.2.2 Supporting Documents and Policies
■ 2013-2017 Accessibility Plan
■ 2014 Accessibility Status Report
■ 2014 Growth Trends Review
■ Department Operating Budget
■ Department Capital Budget
■ Recreation and Leisure Guide
■ Clarington Community Forecast Update
■ Clarington Community Forecast — Population and Employment Projections
■ Municipality of Clarington Customer Service Policy (CLD-023-09)
■ Parks, Open Space and Trails Development Paper
■ Schedule of Rates and Fees (CSD-007-15)
■ Various staff reports
■ Memorandum to the Municipality of Clarington Re: Clarington Community Forecast
Update 2013, Hemson Consulting Ltd, January 2013
■ Places to Grow — Growth Plan for the Greater Golden Horseshoe (2017)
■ Clarington Growth Trends 2017, Municipality of Clarington Planning Services
Department, 2017
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■ Clarington Growth Trends 2018, Municipality of Clarington Planning Services
Department, 2018
■ Demographic Information 2018, Clarington Board of Trade and Office of Economic
Development
■ Statistics Canada, 2016 Census, Community Profile, Municipality of Clarington
Census Subdivision
■ Statistics Canada, 2016 Census, Community Profile, Bowmanville Population Centre
■ Statistics Canada, 2016 Census, Community Profile, Regional Municipality of
Durham Census Subdivision
■ Statistics Canada, 2016 Census, Community Profile, Province of Ontario
2.3 Community Profile
2.3.1 Regional Context
The Municipality of Clarington is an urban -rural community with one of the largest land
areas (611 kms2) in the Greater Toronto Area. It's rich heritage dates back over 125
years. The landform is diverse, comprising the Lake Ontario shoreline, the Oak Ridges
Moraine and farmland that is protected by the extensive Ontario Greenbelt. Easy
access to the Greater Golden Horseshoe region and the rest of southern Ontario is
afforded by highways 401, 407, 418 (future), 35/115, as well as C.N. and C.P. rail lines
and a future GO Train terminal.
The Municipality is located within the Region of Durham and is bordered by the City of
Oshawa on the west, the Township of Scugog and the City of Kawartha Lakes on the
north, the Municipality of Port Hope on the east and Lake Ontario on the south.
2.3.2 Communities within a Community
As a `community of communities' Clarington comprises the following four distinct urban
areas: Courtice, Bowmanville, Newcastle and Orono - located west to east along the
Lake Ontario shoreline, principally linked by highways 2 (King Street East) and 401.
Within the rural area are smaller hamlets and settlement areas (Hampton, Newtonville,
Solina, Tyrone, Mitchell Corners, Leskard, Enniskillen, Haydon, Wilmot Creek, Kirby,
Burkton, Enfield, Maple Grove and Brownsville) — each with a defined settlement area
boundary).
Current Population
Bowmanville is the most populated of the urban areas, followed by Courtice and
Newcastle. The 2016 census population is reported below. The Statistics Canada
Census Profile did not delineate Courtice as a separate settlement area; therefore, the
population of Courtice and, by default, the rural area are estimates. The estimated net
under -coverage for Clarington that has been calculated at 3.73% has been applied to
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the national census numbers. The national net under -coverage is lower at 2.8%.
■ Courtice
■ Bowmanville
■ Newcastle
■ Rural area
■ Total
27,000 (estimate)
40,840
9,509
18,096 (estimate)
95,445
Clarington Planning Services recently estimated the 2018 population as follows:
■ Coutice
27,422
■ Bowmanville
46,600
■ Newcastle
10,881
■ Rural area
19,692
■ Total
104,580
2.3.3 Age Profile
The 2016 census reported that the age profile of the Municipality of Clarington was
similar to Durham Region, but considerably younger than Ontario. For Clarington, the
average age was 38.9 compared to Ontario at 41.0. At 39.1, the median age in
Clarington was also younger than Ontario (40.2).
Compared to Ontario, the percentage of children, youth, young adults and mid -age
adults in Clarington was higher, while the percentage of the population that was age
55+ was significantly lower (26.3% in Clarington, compared to 30.4% for Ontario).
Compared to Durham Region, the percentage of children, youth and young adults in
Clarington was slightly larger. The percentage of age 40-54 adults was the same as
Durham Region. However, for the age 55+ population, the Clarington percentage was
slightly smaller (26.3% compared to 27.8%)
This suggests that Clarington is attractive to young families in their family -forming years.
Communities that are growing at an above average rate tend to have a younger age
profile. The number of children and youth age 0-19 totaled 23,360, and the number of
young adults age 20-39 totaled 23,790. Even though the proportion of older adults was
below the provincial average, there were 12,615 age 65+ and 24,205 age 55+ in 2016.
Refer to Table 1 for more detail.
Bowmanville
Since the proposed facility will be located within the Bowmanville urban area, it is useful
to examine the demographic profile of that community. Statistics Canada, through the
2016 census, provided specific data about what they refer to as the Bowmanville
Population Centre. The age profile of the Bowmanville community was younger than
the Municipality as a whole, with a much larger percentage of children, youth and young
adults. The percentage of mid -age adults (age 40-54) was slightly smaller than the
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Municipality as a whole, and the percentage of the Bowmanville population age 55+ was
considerably smaller than the Municipality (22.4% compared to 26.3%).
For Bowmanville, the average age was 36.9 compared to Clarington at 38.9. At 36.1,
the median age in Bowmanville was also considerably younger than Clarington (39.1).
Refer to Table 1 for more detail.
2.3.4 Income
The 2016 census reported on 2015 household income. For Clarington, average
household income (before tax) was somewhat higher than the Ontario average at
$109,266 compared to $97,856. Average household income in Clarington was slightly
higher than Durham Region ($106,886). At $100,758, the average household income
for Bowmanville was lower than Clarington and Durham Region, but higher than the
Ontario average.
In 2015, almost half of households in Clarington had an income of $100,000 +, which
was higher than Durham Region and considerably higher than Ontario (47.2%, 43.8%
and 34.9% respectively). For Bowmanville, the figure was lower at 45.7%.
Refer to Table 2 for more detail.
Table 1: Age
A.-
Cohort
0-4
Profile - Clarington,
Clarington
5,590 6.1
Bowmanville,
Bowmanville
2,750
Durham Region
7.0
and Ontario,
Durham
Region
5.5
2016
Ontario
5.2
5-9
5,790
6.3
2,835
7.2
6.2
5.6
10-14
5,770
6.3
2,545
6.5
6.3
5.6
15-19
6,210
6.7
2,660
6.8
6.7
6.0
20-24
5,880
6.4
2,395
6.1
6.7
6.7
25-29
5,410
5.9
2.665
6.8
5.8
6.5
30-34
6,240
6.8
3,110
7.9
6.1
6.4
35-39
6,260
6.8
3,055
7.8
6.4
6.3
40-44
6,235
6.8
2,835
7.2
6.7
6.5
45-49
6,515
7.1
2,750
7.0
7.3
7.0
50-54
7,900
8.6
2,965
7.5
8.5
7.9
55-59
6,545
7.1
2,380
6.0
7.5
7.4
60-64
5,045
5.5
1,880
4.8
5.9
6.3
65-69
4,320
4.7
1,495
3.8
4.9
5.5
70-74
3,235
3.5
1,110
2.8
3.4
3.9
75-79
2,170
2.4
760
1.9
2.4
2.9
80-84
1,520
1.7
580
1.5
1.8
2.3
85+
1,375
1.5
625
1.6
1.8
2.2
Total
92,013
100
39,371
100
100
100
0-9
11,380
12.4
5,585
14.2
11.7
10.8
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Age
Cohort
10-19
Clarington
11,980 13.0
Bowmanville
5,390 13.7
Durham
Region
12.9
Ontario
11.6
20-39
23,790 25.9
11,225 28.5
25.1
19.6
40-54
20,650 22.4
8,550 21.7
22.4
21.4
55-64
11,590 12.6
4,260 10.8
13.5
13.7
55+
24,205 26.3
8,825 22.4
27.8
30.4
65+
12,615 13.7
4,565 11.6
14.4
16.7
Average
Age
38.9
36.9
38.9
41.0
Median
Age
39.1
36.1
40.2
41.3
Source: Statistics Canada, 2016 Census (not including the census net under -coverage
rate of 2.8%)
2.3.5 Educational Attainment
Educational attainment for Clarington residents age 15 and older was very similar to
Durham Region and Ontario - across all levels. Levels in Bowmanville were very
similar to Clarington as a whole.
Refer to Table 3 for more detail.
2.3.6 Ethno-Cultural Characteristics
Although the population is not as ethno-culturally diverse in Clarington compared to
Durham Region and Ontario, it will become more so in the coming years.
Visible Minority Population
The proportion of the population representing visible minorities in Clarington (and
Bowmanville) is much smaller than Durham Region and Ontario (7.9% and 8.0% for
Clarington and Bowmanville, compared to 27.15 and 29.3% for Durham Region and
Ontario). In 2016, the top five sub -groups in Clarington were:
■ Black
2.7%
■ South Asian
1.7%
■ Filipino
0.6%
■ Latin American
0.6%
■ Chinese
0.6%
In Durham Region, the top sub -group was South Asian (8.6%), followed by Black (8%)
and Filipino (2.3%). For Ontario, the top sub -group was South Asian (8.7%), followed
by Chinese (5.7%) and Black (4.7%).
Place of Birth
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At 54.9% and 54.0% respectively, Europe is the top place of birth of Clarington and
Bowmanville residents, followed by the Americas and Asia. For Durham Region and
Ontario, Asia represents the top place of birth, followed by Europe and the Americas.
Ethnic Origin
At 76.8% and 75.3%, European was the top ethnic origin reported for Clarington and
Bowmanville residents in the 2016 census. Although that was also the case for Durham
Region and Ontario, the percentages were considerably smaller at 65.2% and 61.2%
respectively. North American non -Aboriginal origins were second in all jurisdictions,
followed by Asian — although for Asian origins, the percentages were much higher in
Durham Region and Ontario.
Aboriginal Identity
For Clarington, Bowmanville, Durham Region and Ontario, Aboriginal Identity was
similar at between 2.0% and 2.8%.
Refer to Table 4 for more detail.
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Table 2: Household Income - Clarington, Bowmanville, Durham Region and
Ontario, 2015
Income Characteristic
Average total income of
households
ClaringtonDurham
$109,266
Bowmanville
$100,758
RegionOntario
$106,886
$97,856
Total household income by income
group
1.0%
1.0%
1.6%
3.0%
■ Under $10,000
2.4%
2.9%
3.8%
6.2%
■ $10,000 to $19,999
4.2%
4.8%
5.5%
7.5%
■ $20,000 to $29,999
5.3%
5.7%
6.1 %
7.9%
■ $30,000 to $39,999
6.2%
6.8%
6.7%
7.9%
■ $40,000 to $49,999
6.8%
7.0%
6.8%
7.5%
■ $50,000 to $59,000
6.8%
6.9%
6.8%
7.0%
■ $60,000 to $69,999
6.7%
6.9%
6.5%
6.5%
■ $70,000 to $79,999
6.7%
7.2%
6.4%
6.0%
■ $80,000 to $89,999
6.5%
7.0%
6.1 %
5.5%
■ $90,000 to $99,999
25.4%
25.6%
22.9%
18.5%
■ $100,000 to $149,000
21.8%
20.1 %
20.9%
16.4%
■ $150,000 and over
Source: Statistics Canada, 2016 Census
Table 3:
Educational Attainment (Age 15 and Over) Clarington, Bowmanville, Durham
Region and Ontario, 2016
No certificate, diploma or degree
16.7%
17.4%
16.2% 17.5%
Secondary school diploma or
29.4%
29.1 %
29.9% 27.9%
equivalency certificate
Post -secondary certificate, diploma
53.9%
53.5%
53.9% 55.1 %
or degree
Source: Statistics Canada, 2016 Census
2.3.7 Persons with Disabilities
One in seven people in Ontario has a disability (almost 2 million). By 2036, that number
is expected to rise to one in five as people age. Over the next 20 years, aging
Ontarians and people with disabilities are expected to represent 40% of the total
population. Although figures are not available for Clarington's younger than average
population, it is likely that the proportion of the current population with a disability is
close to the Ontario average. Based on the 2016 population of Clarington, there are
likely over 13,000 local residents living with a disability.
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Table 4: Ethno-Cultural Characteristics - Clarington, Bowmanville, Durham
Region and Ontario, 2016
Characteristics
ClaringtonYork
Bowmanville
RegionOntario
Visible Minority Population
■ Total
7.9%
8.0%
27.1 %
29.3%
■ Black
2.7%
2.7%
8.0%
4.7%
■ South Asian
1.7%
0.4%
8.6%
8.7%
■ Filipino
0.6%
0.7%
2.3%
2.4%
■ Latin American
0.6%
0.4%
1.0%
1.5%
■ Chinese
0.6%
0.4%
1.9%
5.7%
■ Arab
0.3%
0.3%
0.9%
1.6%
■ West Asia
0.2%
0.3%
1.0%
1.2%
■ Korean
0.1 %
0.1 %
0.2%
0.7%
■ Japanese
0.1 %
0.1 %
0.2%
0.2%
Place of Birth
■ Americas
20.6%
21.1 %
26.6%
15.5%
■ Europe
54.9%
54.0%
31.4%
29.7%
■ Africa
3.6%
5.4%
5.3%
5.9%
■ Asia
15.2%
18.7%
36.3%
48.5%
■ Oceana and Other Places of
0.6%
0.9%
2.7%
4.4%
Birth
Ethnic Origin
■ North American Aboriginal
4.3%
5.1 %
3.2%
3.9%
Origins
36.8%
46.2%
28.8%
24.3%
■ Other North American Origins
76.8%
75.3%
65.2%
61.2%
■ European Origins
3.0%
2.8%
7.8%
3.5%
■ Caribbean Origins
1.7%
1.5%
2.8%
2.4%
■ Latin, Central & South American
1.3%
1.5%
3.1 %
3.1 %
Origins
5.1 %
5.3%
17.7%
23.4%
■ African Origins
0.2%
0.2%
0.2%
0.2%
■ Asian Origins
■ Oceania Origins
Aboriginal Identify
2.6%
2.9%
2.0%
2.8%
2.4 Anticipated Population Growth and Change
Between 2011 and 2016, Census Canada reported that the population of Clarington had
increased by 7,465 or 8.8%, which was considerably faster than the Ontario average of
4.6%. During the same period, Bowmanville grew at an even faster rate of 12%.
The most current population forecast for Clarington is dated. A Community Forecast
Update for Clarington was produced by Hemson Consulting Ltd. in January 2013. That
forecast was based on population, households and housing data reported in the 2011
census and the 2009 Growth Plan for the Greater Golden Horseshoe. The Hemson
Update projected the population to 2031 for the Municipality and for Courtice,
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Bowmanville, Newcastle and the rural area. The 2009 Growth Plan for the Greater
Golden Horseshoe forecast the 2016 population of Clarington to be 97,100, which was
1,655 above the census population (including the Clarington-specific census net under -
coverage of 3.73% that was applied to the 2016 census population).
Table 5: Clarington Population by Community, 2006 - 2031
BowmanvilleYear
2006
31,600
23,200
8,900
17,200
80,900
2011
36,100
24,900
8,300
18,400
87,700
2016
40,840
27,000
9,509
18,096
95,445
2018
46,600
27,422
10,881
19,667
104,580
2021
47,100
31,300
12,200
19,100
109,800
2026
55,100
33,600
15,300
19,600
123,900
2031
64,200
36,600
19,300
20,300
140,400
Growth
17,600
9,178
8,419
633
35,820
2018-2031
37.8%
33.5%
77.4%
3.2%
34.3%
Sources: Statistics Canada Census (2006, 2011, 2016), Clarington Planning Services
(2019) and Hemson Consulting Ltd. (projections for 2021, 2016, 2031)
Note: 2016 population includes net under -coverage rate of 3.73% (Clarington-specific).
Growth is projected to be almost exclusively focused on the three urban communities,
with the share of the population gradually diminishing in the rural areas. It is projected
that between 2018 and 2031, the population of Newcastle will increase at a much faster
rate than Courtice and Bowmanville.
The full build -out population for the Municipality of Clarington, the three urban
communities and the rural area are as projected by 2031 in the Growth Plan for the
Greater Golden Horseshoe - and based on the share of the Region's population that
was allocated to Clarington. However, it is possible that the 140,400 allocation for
Clarington could be increased. Refer to Table 5.
2.4.1 Changing Age Profile
The 2013 Community Forecast Update by Hemson Consulting Ltd. projected the
changing age profile of the Municipality, the three urban communities and the rural area
to 2031.
The overall aging of the population in the Municipality is a demographic trend that is
typical of most Ontario communities, as well as much of Canada. However, in
Clarington, the effect of higher fertility rates, especially in the three urban communities,
will result is a larger number and percentage of children in the population, compared to
provincial averages.
During the twenty-year period (2016-2031), the big Baby Boom and Millennial
generations will greatly impact the age profile of Clarington. The Baby Boom will shift
from age 51-70 to age 66-85. The Millennial generation will shift from age 16-36 to age
31-51.
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That will result in a much smaller proportion of mid -age adults (age 40-54) and a
significantly increased proportion of age 65+ residents. The mid -age population is
projected to decline from 22.4% to 15.5%, while the age 65+ population is expected
increase from 13.7% to 17.1 %. The young adult population (age 20-39) is projected to
increase a great deal from 25.9% to 33.9%, along with an increase in the child
population (from 12.4% to 13.7%). The youth population is projected to decline in
percentage from 13% to 11 %, along with the pre -senior (age 55-64) population (12.6%
to 8.7%).
Refer to Table 6 for the details.
Table 6: Projected Trends in Age Profile, Municipality of Clarington and
Bowmanville, 2016-2031
g
BowmanvilleCohort Clarington
2016 2031 2016 2031
0-9
11,380
12.4
18,530
13.7
5,585
14.2
8,510
13.8
10-19
11,980
13.0
14,890
11.0
5,390
13.7
7,140
11.6
20-39
23,790
25.9
45,890
33.9
11,225
28.5
22,270
36.1
40-54
20,650
22.4
20,920
15.5
8,550
21.7
10,010
16.2
55-64
11,590
12.6
11,820
8.7
4,260
10.8
5,180
8.4
65-74
7,555
8.2
12,750
9.4
2,605
6.6
4,550
7.4
75+
5,065
5.5
10,410
7.7
1,965
5.0
3,390
5.6
55+
24,205
26.3
34,980
25.9
8,825
22.4
13,120
21.3
65+
12,615
13.7
23,160
17.1
4,565
11.6
7,940
12.9
Total
92,013
100.0
135,210
100.0
39,371
100.0
61,650
100.0
50-69
23,810 ■
25.9% ■
25,090
18.6
8,720 ■
22.1 ■
11,660
18.9
65-84
11,245
12.2
20,040 ■
14.8% ■
3,945
10.0
7,770 ■
11.6 ■
15-34
23,740•
25.8 •
41,910
31.0
10,830*
27.5*
20,940
34.0
30-49
25,250
27.4
39,830 •
29.5•
11,770
29.9
18,260•
29.6*
Source: Statistics Canada Census and Hemson Consulting Ltd.
Baby Boom
Generation
Millennial
Generation
For Bowmanville, the patterns are similar, except that the child population is projected to
decline slightly by 2031 instead of increasing, as is anticipated for the Municipality as a
whole (from 14.2% to 13.8%).
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Chapter Three: Needs Assessment
3.1 Introduction
In this chapter, the market area will be described, along with the 2017 Indoor Recreation
Facilities Development Strategy, indoor recreation and library facilities, updated demand
indicators, and the life cycle status of Municipality of Clarington indoor recreation
facilities. The chapter wraps up with conclusions and implications for the proposed
South Bowmanville Recreation Centre.
3.2 The Market Area
Even though the Municipality is comprised of four prominent communities, each with a
long and well -established history (Courtice, Bowmanville, Newcastle and Orono), as
well as a number of hamlets and smaller settlement areas, it is expected that major
recreation facilities, no matter where they are located and what facility mix they contain,
will be programmed and promoted as available to all residents. It is not the intent to
replicate all types of major recreation facility in each of the three communities and
throughout the rural area. Some facilities such as the Garnet B. Rickard Recreation
Complex regularly attract customers from across the Municipality. Current indoor
recreation centres and stand-alone arenas represent a well-balanced distribution of
facilities. However, since there is only one full -service fitness facility located in Courtice,
and one full-size gymnasium located in Newcastle, those types of facilities are not
evenly distributed.
Therefore, it is not intended for the proposed South Bowmanville Recreation Centre to
only serve the Bowmanville community. Consequently, the market area for this facility
is the entire Municipality of Clarington.
3.3 Indoor Recreation Facilities Development Strategy, 2017
In January 2017, the Indoor Recreation Facilities Development Strategy for the
Municipality of Clarington was received by Council. The objective was to prepare a
strategy for the provision of indoor recreation facilities to 2031, a date that may roughly
coincide with a full -developed municipality and a projected population of 140,400. The
only indoor recreation facilities that were not fully included in the strategy were the
stand-alone arenas located in Orono and Newcastle. Although owned by the
Municipality, they are operated by independent boards of management. The seven
other community facilities were included in the study and the provision strategy.
The strategy included short-term, medium -term and long-term recommendations. The
timing/phasing of recommended facilities is contingent upon many factors, including
actual population growth to 2031, facility utilization, future recreation preferences, the
financial capacity of the Municipality to fund and operate additional facilities, competing
municipal priorities, and life expectancy of existing recreation facilities.
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Short -Term (2017-2021)
1. Rescind Council Resolution C-286-03 regarding the Municipal role in providing
equipment -based fitness facilities (2017).
2. Provide a new community centre in south Bowmanville at the location of the indoor
soccer facility (South Bowmanville Recreation Centre).
Phase One (2018):
■ twin -pad arena'
■ gymnasium
■ fitness/wellness facility
■ indoor walking track
■ multipurpose program spaces
■ youth and older adult space
■ Department of Community Services administration offices
Medium Term (2022-2026)
1. Phase One expansion of the Diane Hamre Recreation Complex (2022):
■ fitness/wellness facility
■ youth and older adult space
2. Re -assess arena needs (2023).
3. Expand the Courtice Community Complex to include a new teaching pool (2024).
4. Phase Two Expansion of the Diane Hamre Recreation Complex (2026):
■ twin -pad arena
■ indoor walking track
Long -Term (2027-2031)
Expand the South Courtice Arena (2027)
■ gymnasium
2. Assess indoor aquatic needs (2028)
3. Phase Two Expansion the South Bowmanville Recreation Centre (2029)
■ indoor aquatic facility
'A twin -pad arena in Bowmanville is recommended based on the estimated hours being
contracted by minor sport users in surrounding communities, expansion of adult hockey
opportunities and expansion of municipal recreation programs and services. Construction
would commence after the Municipality confirms that sufficient ice -related demand exists, based
on market conditions at that future time.
2 A twin -pad arena is recommended at the Diane Hamre Recreation Complex subject to the
results of an arena needs assessment in 2023.
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3.4 Indoor Recreation and Library Facilities
Below is a description of indoor recreation and library facilities owned by the
Municipality of Clarington.
South Courtice Arena (77,000 ft2) — 2003
■ Twin -pad arena (Olympic and NHL size ice surfaces)
■ 1/4 court gym with hardwood floor (more of an aerobic fitness studio)
■ 2 multipurpose and meeting rooms
■ The John Howard Society operates a Youth Centre in a second -floor space between
the ice pads
■ There is room to expand on the site
Courtice Community Centre (47,000 ft2) - 1997
■ 25 metre leisure -style pool x 6 lanes
■ Teaching pool (too small and too shallow)
■ Whirlpool/sauna adjacent to pool deck
■ Change rooms associated with the aquatic facility (male/female/family)
■ Fitness centre (approx. 2,000 ft2 strength and conditioning gym + approx. 2,000 sf
group fitness/aerobic studio + approx. 1,000 sf multipurpose room + reception area +
M/F change rooms) — the strength and conditioning gym is too small — 3 levels of
membership are offered (Fitness Membership Basic, Fitness Membership Plus, and
Group Fitness)
■ Change rooms and sauna associated with the fitness operation
■ Dedicated older adult space (approx. 3,000 ft2 in total - reception area + 2
multipurpose rooms + a small `coffee shop') — not used in the evenings and on
weekends — not a membership -based facility
■ Branch library (enlarged in 2015) — 12,000 ft2, includes a multipurpose room
■ There is room to expand to the west over the soccer field
Garnet B. Rickard Recreation Complex (88,600 ft2) — 1988
■ Twin -pad arena (1988 and 1998) — one with +/- 1,500 seating and the other with less
■ Banquet hall (6,000 ft2 - divisible into 3 spaces) + kitchen + outdoor courtyard that
can serve alcohol + storage via hallway — recently renovated — heavily used — a
community `go -to' place
■ 2 multipurpose rooms
■ Community Care office and Adult Day Program located in the facility (2010)
■ Concession operated by Participation House
■ There is no room for facility expansion
Bowmanville Indoor Soccer Facility (28,500 ft2) — 2005
■ Indoor synthetic field (slightly under -size at 100' x 180')
■ Change rooms (4)
■ Meeting room
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■ Supports indoor walking around the perimeter of the field
■ Adjacent outdoor lighted lacrosse box
■ There is room to expand to the north and west
Alan Strike Aquatic and Squash Centre (17,200 ft2) — 1982
■ Attached to Bowmanville High School
■ Major renovation in 2015 to extend useful life by 10-15 years
■ 25 metre rectangular pool tank x 6 lanes
■ Whirlpool/sauna adjacent to pool deck
■ Upper and lower viewing areas — limited occupancy
■ Narrow pool decks
■ Starting blocks, but no diving board
■ Shallow end is 1 m deep
■ Change rooms (male/female/family)
■ Sanctioned by FINA for swim meets
■ Upper viewing areas
■ 2 International squash courts
■ Multipurpose space — upper level
Diane Hamre Recreation Complex (61,900 ft2) — Newcastle — 2008
■ 25 metre rectangular pool tank x 6 lanes
■ Teaching pool — large, variable depth to 1 metre
■ Whirlpool/sauna adjacent to pool deck
■ Change rooms (male/female/family)
■ Double gymnasium
■ Children's activity room
■ Multipurpose rooms (2) — support floor -based group fitness classes
■ Meeting room
■ Ample common/viewing areas
■ The John Howard Society operates a Youth Centre
Darlington Sports Centre — (32,000 ft2) - 1975
■ Single -pad arena
■ 4 dressing rooms
■ Major renovation in 2010 to extend useful life for 10-15 years
Newcastle Memorial Arena — (27,000 ft2) - 1975
■ Single -pad arena
Orono Arena and Community Centre (36,000 ft2) - 1974
■ Single -pad arena
■ Community hall
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Libraries
■ Main Branch — located in Bowmanville at 163 Church Street — co -located with the
municipal office — 24,000 ft2 (2003)
■ Courtice Branch — Co -located with the Courtice Community Complex at 2950
Courtice Road (12'000ft2) - originally build in 1997 — renovated and expanded in
2015
■ Newcastle Branch — located at 150 King Avenue East — 3700 ft2 (2009)
■ Orono Branch — located at 127 Church Street — 3600 ft2 (originally constructed in
1882 as a private residence. The building was obtained by the Library Board in
1969 and opened in 1970)
3.5 Updated Demand Indicators
3.5.1 Introduction
As introduced earlier, the demand research focused on the types of facilities being
considered for the proposed South Bowmanville Recreation Centre. The research was
further focused on arenas, aquatic facilities and fitness/wellness facilities.
In addition to the Community Forum and the online household survey, Community
Services staff conducted two meetings with the following groups:
■ Meeting One: Clarington Minor Hockey Association, Clarington Zone AAA Hockey
Association, Clarington Girls Minor Hockey Association, Eastern Elite Hockey, Scary
Skate and the Newcastle Arena Board
■ Meeting Two: Clarington Swim Club (instructional and competitive swim programs),
Clarington Squash Club (recreational squash league), Autism Home Base Durham
(programs and support for age 18+ people with Autism), Clarington Minor Lacrosse
Association (representative and house league) and Clarington Green Gaels Jr. B
Lacrosse Association.
Additional demand research comprised the following:
■ recent wait lists and requests for programming and facilities;
■ trends in registration re: sport and other relevant user groups;
■ trends in program registration;
■ trends in facility bookings and utilization (including level of utilization in hours and
uses/programs — to determine if there is additional capacity in any facilities for
specific uses); and
■ any other indicators of demand.
In Section 3.5.11, key national trends in leisure demand and facility provision that relate
to the proposed community centre are noted.
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The other types of non -recreation facilities being considered for the proposed South
Bowmanville Recreation Centre include:
■ a branch library (to supplement the main branch in Bowmanville, and satellite
branches in Courtice, Newcastle and Orono),
■ Tourism Clarington (move the office from the Liberty Street South location), and
■ Department of Community Services administration offices.
A significant factor in the demand assessment across all leisure interests and types of
facilities is that the population of Clarington is projected to increase by at least 34% by
around 2031 (38% in Courtice, 34% in Bowmanville and 77% in Newcastle).
Key findings and conclusions from the community engagement program and the
analysis of the other demand research are reported below.
3.5.2 The Community Forum
On June 18, 2019, a Community Forum was hosted at the Garnet B. Rickard
Recreation Complex to provide an opportunity for user groups, other stakeholders and
residents to hear about and provide their thoughts about the proposed South
Bowmanville Recreation Centre. Approximately 90 people attended the session and
were organized into eleven discussion groups. After a presentation of background
information, delegates participated in small group discussion.
The following were the discussion questions:
1. What do you most like about what's being proposed so far regarding the South
Bowmanville Recreation Centre?
2. Is there anything that you would add, subtract or otherwise change about the
emerging facility concept?
The response from both questions was recorded by discussion group leaders. The
feedback from both questions has been combined into the following nine themes:
■ Indoor Ice
■ Aquatics
■ Fitness/Wellness
■ Multipurpose Space
■ Gymnasium
■ Outdoor Space
■ Design/Layout
■ Lobby/Administration
■ Other
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Indoor Ice
■ 10 of 11 groups discussed indoor ice/arenas.
■ 9 of 10 groups agreed that more ice pads are needed (from 2 to 4). One group did
not think that an arena should be included in the proposed facility.
■ One group indicated that Newcastle needs another arena/ice pad.
■ Three groups mentioned the need for dry pads (lacrosse).
■ Two groups suggested that a curling facility be included.
■ Two groups suggested that the proposed walking track could be around an ice pad.
■ One group suggested a goalie training pad and another group suggested a half -pad.
■ One group mentioned the economic benefit to the community of tournaments.
Aquatics
■ All groups agreed that an aquatic facility should be included in the proposed
recreation centre.
■ There were many opinions about the nature of the aquatic facility.
■ Four groups suggested 8-lanes x 50 metre with viewing area and a sufficiently wide
pool deck to support swim meets.
■ Two groups suggested inclusion of a therapeutic pool and/or a teaching pool.
■ Other suggestions: saltwater pool, large whirlpool, indoor splash pad, slide, diving
board, adjustable floor.
■ Various programs were noted: aquafit for older adults, diving, competitive swimming,
swim meets (national), lessons, water polo.
Fitness/Wellness
■ Eight groups discussed this topic.
■ The value of a fitness centre and dryland training area for sport teams was noted by
three groups.
■ One group mentioned a sport rehabilitation facility/program.
■ Group fitness and less focus on equipment was noted by four groups, although
some saw a combination of equipment and group fitness.
■ One group suggested a childminding service.
Multipurpose Space
■ Every group discussed this component.
■ Common comments: flexible, quiet, supports many programs and meetings — for all
ages
Gymnasium
■ Every group discussed this component.
■ Dividable was important (2 or 3 units)
■ Many gym sports were mentioned.
■ Ensure ample storage is available.
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Outdoor Space
■ Eight groups discussed this topic.
■ Suggestions included: pickle ball courts (3), ice rink/ice skate trail (4), patio (3),
performance venue (1), adult fitness gym (1), walking trails and link to wider trail
network (2), tennis courts (1), sports fields (3), skateboard facility (1), water play
facility (2), basketball nets (1), dog park (1), washrooms (1) and community square
(1)
Design/Interior Layout
■ Ten groups discussed this topic.
■ Suggestions included:
■ shared space between older adults and youth
■ accessibility + ramps rather than elevators (4)
■ sufficient parking (2)
■ entrance off Green Road
■ energy conservation, light sensors
■ bright (skylights)
■ open concept — good sight lines throughout
■ two stories
■ warm-up area
■ wide hallways, especially in arena area
■ viewing to activity areas
■ sufficient storage and lockers (2)
■ designated play area in lobby
■ large change rooms (2)
■ design to allow for expansion
■ no windows in gymnasium
■ gender -free washrooms
Lobby/Administration
■ Every group discussed this component.
■ Suggestions included:
■ Food services/cafe/good exposure/good food/healthy food/service outdoor
activities as well (13) — not everyone wanted food services
■ Consider privatizing food services (5)
■ Socializing space/lounge area (6)
■ Quality space
■ Office space for Boys and Girls Club of Clarington
■ Municipal office space
■ Storage for swimming
■ Quiet area (homework space)
■ Pro shop (to support skating and aquatics) (2)
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■ Museum showcase/interpretive space
Other
Suggestions included:
■ Kitchen, culinary classes (5)
■ Is a branch library necessary?/disagree with library being included (5)
■ Library OK — research, tutoring, and computers — will library be walkable? —
rethink traditional library (3)
■ Childcare/childminding space (5)
■ Indoor tennis
■ Private/public partnership
■ Tourism Clarington is better at existing location/question why included (3)
■ Office space for user groups, nonprofits (2)
■ Youth spaces + Video/gaming room (2)
■ Mini pad goalie training area with synthetic ice
■ Facility needs to be serviced by transit
■ Indoor tennis (3)
■ Squash courts (2)
■ Performing arts space, studios, stage (2)
■ Rock climbing wall (2)
■ Pro shop
■ Introduce culture into recreation facilities
■ In -line skate track
■ Expand existing indoor artificial turf field
■ Like the concept of `one -stop shopping'
■ Do it right the first time, not in phases
3.5.3 The Online Household Survey
2,177 respondents completed the online survey that ran for 32 days from June 8 to July
9, 2019.
Since the market area for the proposed South Bowmanville Recreation Centre is all of
Clarington, it was decided not to collect information about where respondents live or to
develop a demographic profile of respondents. The survey was kept to two questions to
increase the response rate.
Question One asked about the respondent's degree of agreement/disagreement with
the key facility components that were emerging for the proposed recreation centre at the
time of the survey. A five -point scale was used to measure the degree of support for
each component (from strongly agree to strongly disagree - including neither agree nor
disagree). The following are the key messages. See Table 7 for the details.
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All of the recreation facility components received strong support. Note that the order of
ranking varied a little, depending on the approach to analysis.
Based on the weighted average score for each facility component (maximum 5 points
possible), facilities were ranked as follows. The weighted average score accounts for
the number of respondents in each of the `agreement - disagreement' categories.
1. Flexible community and programming space for all ages 4.11
2. Indoor walking/running track
4.03
3. Twin pad arena
3.92
4. Fitness centre
3.76
5. Gymnasium
3.76
6. Aquatic facility (type to be determined)
3.73
Note: Although there was a tie between fitness centre and gymnasium, a higher
percentage of respondents `strongly agreed' with the fitness centre, so it was listed
ahead of the gymnasium.
When examining the `strongly agree' category, the twin pad arena moved to the top.
1. Twin pad arena 50.8%
2. Flexible community and programming space for all ages 43.36%
3. Indoor walking/running track 42.72%
4. Aquatic facility (type to be determined) 41.75%
5. Fitness centre 34.63%
6. Gymnasium 31.33%
When `agree' and `strongly agree' were combined, the following was the ranking:
1. Flexible community and programming space for all ages 77.17%
2. Indoor walking/running track 73.08%
3. Twin pad arena 67.34%
4. Gymnasium 65.18%
5. Aquatic facility (type to be determined) 64.76%
6. Fitness centre 64.49%
Although the percentages were relatively small, disagreement was strongest for the
aquatic facility (19.94%), the arena (16.31 %) and the fitness centre (15.25%).
Support was not as strong for the branch library being part of the proposed recreation
centre, with a weighted score of 2.99. Support was evenly split between agree,
disagree and neither agree nor disagree. What is not clear is if some respondents
thought that the current Bowmanville main branch facility was being moved to the
proposed South Bowmanville Recreation Centre, rather than providing an additional
branch facility in Bowmanville. With that clarified, support for the branch library might
have been stronger.
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Although the weighted score was above the mid -point at 2.81, support was weakest for
the offices of Clarington Tourism being located within the proposed South Bowmanville
Recreation Centre. 33.35% disagreed, 22.24% agreed and 44.42% neither agreed nor
disagreed.
Table 7: Detailed Response to Question One
Twin pad
10.20%
6.11 %
16.35%
16.54%
50.80%
arena
222
133
356
360
1,106
2,177
3.92
Aquatic
13.37%
6.57%
15.30%
23.01 %
41.75%
facility (type
291
143
333
501
909
2,177
3.73
to be
determined)
Gymnasium
7.90%
5.10%
21.82%
33.85%
31.33%
172
111
475
737
682
2,177
3.76
Fitness
8.31 %
6.94%
20.26%
29.86%
34.63%
Centre
181
151
441
650
754
2,177
3.76
Indoor
4.23%
4.41 %
18.28%
30.36%
42.72%
walking/
92
96
398
661
930
2,177
4.03
running track
Flexible
3.45%
2.80%
16.58%
33.81 %
43.36%
community
75
61
361
736
944
2,177
4.11
and
programming
space for all
ages
Branch
16.03%
17.82%
33.12%
17.50%
15.53%
library
349
388
721
381
338
2,177
2.99
Location for
16.12%
17.23%
44.42%
14.06%
8.18%
Clarington
351
375
967
306
178
2,177
2.81
Tourism
Question Two asked about other desired amenities and features to be considered. 872
respondents provided an answer(s) to this question. Although the response largely
mirrored the facility categories that were listed in Question One, a few additional indoor
and outdoor facilities were requested. Refer to Table 8.
Two additional indoor facilities were requested:
■ an artificial turf facility (40 in favour), and
■ squash courts (29 in favour).
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Architects Inc.
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Four outdoor facilities were suggested:
■ tennis courts (32 in favour),
■ splash pad/water play facility (18 in favour),
■ children's playground (14 in favour), and
■ an outdoor pool (9 in favour).
i ame u: summary or ine Kesponses
Type of Facility
Indoor Aquatic Facility
to wuestion
Agree
Number
124
i wo
Percentage
93.9
Disagree
Number Percentage
8 6.1
Gymnasium
117
100
0
0
Arena/Ice Pads
116
92.8
9
7.2
Multipurpose Space
80
98.8
1
1.2
Fitness/Wellness Facility
65
97
2
3
Indoor Artificial Turf Facility
40
100
0
0
Indoor Walking/Running Track
33
100
0
0
Squash Courts
29
100
0
0
Branch Library
16
76.2
5
23.8
Clarington Tourism Office
1
25
3
75
Outdoor Tennis Courts
32
100
0
0
Outdoor Splash Pad/Water Play
18
100
0
0
Outdoor Playground
14
100
0
0
Outdoor Pool
9
100
0
0
3.5.4 Consultation Session with Arena User Groups
■ Attending Groups: Clarington Minor Hockey Association, Clarington Zone AAA
Hockey Association, Clarington Girls Minor Hockey Association, Eastern Elite
Hockey, Scary Skate and the Newcastle Arena Board
■ Every hockey association in attendance indicated that they are purchasing additional
ice time outside of the Municipality of Clarington in order to fulfil their needs.
■ Expanding municipal programs has not been considered due to the lack of available
ice time and public dissatisfaction is growing.
■ Association representatives would move all development/practice ice to Clarington if
time was available.
■ While difficult to quantify, the hours of ice time purchased outside of Clarington by
local teams could also potentially move back to Clarington facilities, if there was
sufficient ice time available.
■ Time swaps (exchanging less desirable Clarington ice time for prime time ice) would
not be Considered by the Municipality.
■ Both the CGHA and CZHA expressed interest in the potential of supporting a Junior
level team.
Feasibility Study for the South Bowmanville Recreation Centre, 2019
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Architects Inc.
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■ CGHA has interest in participating in a women's' hockey league currently operating
to the east of Clarington. They would also be interested in creating a Clarington
women's league if the interest could be generated.
■ Private organizations did not express a need for more Clarington ice at their current
capacity.
■ Eastern Elite is anticipating growth and is interested in hosting a tournament.
■ Private organizations brought forward needs regarding complimentary space — e.g.,
multipurpose rooms and storage.
■ Outside of ice time, all organizations voiced a need for dedicated warm-up area and
storage.
3.5.5 Consultation Session with Other Groups
■ Autism Home Base Durham (programs and support for 18+ year old people with
Autism)
■ Clarington Squash Club (recreational squash league)
■ Clarington Swim Club (instructional and competitive swim programs)
■ Clarington Minor Lacrosse Association (representative and house league)
■ Clarington Green Gaels Lacrosse (Junior B)
With the exception of lacrosse, all other associations are operating either at or under the
capacity of the time and space they currently use in Clarington facilities.
Autism Home Base Durham is especially interested in the complimentary spaces (e.g.,
to establish a sensory -friendly room).
The Clarington Squash Club would like to see new courts in the proposed South
Bowmanville Recreation Centre (4 singles and 2 doubles) - which would allow them to
host tournaments. If new squash courts are included in the new facility, the current
courts at the Alan Strike Aquatic and Squash Centre would not be required by the Club.
There was a suggestion to repurpose or rent the existing courts to a club outside of
Clarington. The Clarington Squash Club also shared the idea of portable courts which
could be set up in a gymnasium.
A fitness/wellness centre was considered to be a good compliment to all active
associations.
The Clarington Swim Club indicated that they could use an additional 10 hours of pool
time, but noted that they would need time to grow their membership and programs in
order to afford the extra time. They are concerned about the lifecycle of the Alan Strike
pool, and if it is decommissioned, there would be no competitive pool in Clarington. It
was suggested that if an aquatic facility is included in the proposed recreation centre,
that it be able to host competitions (minimum of 8 lanes and 25 metres in length). At
this point, it is unclear whether the Alan Strike pool would still be used by the Swim Club
if a new pool is built at the proposed South Bowmanville Recreation Centre.
The Clarington Minor Lacrosse Association is currently running leagues year-round.
With no dry pads available in Clarington, they are renting space in surrounding
communities at approximately 30 hours per week. If there was sufficient dry floor
availability in Clarington, they would move all of their rentals here. Note: This may be a
Feasibility Study for the South Bowmanville Recreation Centre, 2019
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Architects Inc.
Page 27
consideration when the Darlington Sports Centre reaches the end of its useful life as an
ice facility.
3.5.6 Workshop with Clarington Community Services Staff
Staff Teams Represented
■ Adult 55+
■ Aquatics
■ Client Services
■ Community Development
■ Customer Service
■ Facilities
■ Fitness
■ Recreation
With the Municipality representing such a large geographic area, how far will people
travel for to use an arena compared to an indoor pool?
■ For a pool — in an urban area, users are willing to travel about 15 mins; in a rural
area, users are willing to drive about 30 km.
■ Typically, there are fewer pools/population than ice pads
Considerations for competition with private fitness centres:
■ A move toward strength and conditioning would be a better match for a municipal
operation.
■ Specialized equipment with a wellness focus
Is there a trend towards multi -purpose vs. dedicated programmable space?
■ Although there are staunch supporters of dedicated space, with proper storage
options, a space can be dedicated to groups/programs/age groups, while still being
available for others.
■ Note: Adult 55+ programming may be trending towards `adult' programming, rather
than dedicated older adult programming.
Aquatics
■ There is a demand for Aquafit during prime time.
■ Ethno-cultural swims have to be considered in the design stage to allow for
adequate privacy.
■ Must anticipate decline of registrations at older aquatic facilities, when a new aquatic
facility becomes available.
■ Currently, pool utilization is not quite at capacity.
■ Potential partnership with the Clarington Swim Club may alleviate downturn at ASC
and help develop additional staff resources (lifeguards, instructors).
■ Possible partnership with high schools to encourage students to be
lifeguard/instructors.
■ Design the new aquatic facility in consultation with deck staff, e.g., how many people
required on deck to open the pool.
Feasibility Study for the South Bowmanville Recreation Centre, 2019
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Architects Inc.
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The new aquatic facility should be designed to meet the needs of the Clarington
Swim Club, as well as other users and all aquatic programs, as the Alan Strick
facility will be 50 years old in 2032.
With an aging population, demand for a therapeutic tank will continue to increase.
Public Skating
Limited time is available for unstructured programming.
40 hours of public swims vs. 6 hours of public skating is the current pattern.
Public demand for unstructured programming is increasing and it needs to be on
same level as structured programming.
Ice Rental
■ Ice rental numbers are consistent because arenas are operating at capacity in prime
time - with no time to accommodate additional demand.
■ There is a large current demand from ice user groups. In excess of $300,000/year is
being spent on ice rental outside of Clarington by Clarington organizations.
■ Organizations have growth plans and opportunities that cannot be accommodated
due to lack of ice time.
■ Additional complimentary spaces recommended: warm-up areas, meeting space,
fitness centre.
■ Organizations are willing to pay for these extra areas.
Fitness
■ Growth areas are group classes, challenge -type programs and `Learn to' classes.
■ Team dryland programs is another potential growth area.
■ Fitness membership remains steady.
■ Consideration for Sport tourism — walking track should be designed for walking,
running and competition (6-7 lanes).
■ Consider inclusive fitness space, modified equipment/programs.
■ Rename Fitness Centre to Wellness Centre (focus on `active living').
■ The Indoor Recreation Facility Strategy recommended a future fitness centre in
Newcastle — a fitness facility in Bowmanville could attract customers from Newcastle
and Courtice.
■ Must have a Plan B for any designated fitness space.
General Discussion about the Facility Concept
Indoor
■ Sports injury/rehab clinic
■ Warm-up area associated with teams using the arena — dedicated area to be
available when needed — can be used for other purposes when not required as a
warm-up area
■ Mini stick facility
■ Spectator seating in at least one arena pad
■ Quiet reflection space
Feasibility Study for the South Bowmanville Recreation Centre, 2019
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Architects Inc.
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■ Culinary/teaching kitchen - likely could double as a kitchen to support events in the
multipurpose spaces
■ Mobile workspaces (WiFi, shared printer, power, maybe a few workstations and/or
tables)
■ Meeting rooms/small program rooms
■ Lots of storage, some dedicated to regular user groups/programs
■ Arts and culture programming + art display space
■ Large lobby
■ Lengthen indoor soccer facility pitch to 200'
■ Outdoor gym
■ Trails — cross -programmed with fitness/wellness program — could be a skating path
■ Major playground
■ Water play facility
■ Celebration square
■ Display and/or sensory garden associated with outdoor quiet reflection space
■ Community vegetable garden
■ Beach volleyball courts
■ BMX track
■ Skateboard facility
General
■ Ensure diversity and inclusiveness in programming and operations
■ LEED certified building
■ Good flow throughout the building
■ Creating a `community' centre rather than a `recreation' centre is a priority.
■ Do it right the first time.
■ A gymnasium, multipurpose program rooms and an indoor walking/running track are
givens. There is greater risk for the Municipality with an indoor aquatic facility and an
arena.
3.5.7 Key Information about Arenas
■ Facilities include:
o Garnet B. Rickard Recreation Complex (twin -pad)
o South Courtice Arena (twin pad)
o Darlington Sports Centre (single pad)
o Newcastle Memorial Arena (single pad) — operated by an independent
management board
o Orono Arena and Community Centre (single pad) — operated by an independent
management board
Feasibility Study for the South Bowmanville Recreation Centre, 2019
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Architects Inc.
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■ Most of the prime time is utilized by group -based rentals, with limited opportunity for
program -based uses (e.g., public skate, parent and tot skate, Skate 55, youth
shinny, adult shinny and Shinny 55). Between 2012 and 2016, the annual number of
participants in these programs ranged from 17,261 to 21,589. Participation in drop -
in public skating increased from 9,288 occasions in 2012 to 16,532 in 2018, with the
largest increases for parent and tot, youth and seniors. The most significant decline
was in family and group skating. Demand for learn -to -skate programs exceeds
supply.
■ Increased expectation has been expressed for programmed uses in prime time.
■ Hours of ice time rented have been consistent over the past four years for the five
ice pads that the Municipality administers. The average per year is 10,383 hours.
Prime time is fully booked.
■ The current allocation of municipal ice time to sport organizations is not adequate to
meet needs. It is estimated that between $250,000 and $300,000 is being spent
annually on out-of-town ice rental by Clarington groups.
■ There is current demand for expanded programs (municipal and ice user groups)
and expansion of sport tourism (tournaments and special events), especially in
prime time. Examples include the following:
o Current demand for additional public skating programs cannot be satisfied
without taking ice time away from existing user groups. With the expected
growth in population, this situation will worsen, and resident voices will only grow
louder.
o The addition of two ice pads will enable the Municipality to attract new, larger
special events. This will have a positive economic impact through sport tourism
and is a fantastic way to promote Clarington. Currently to achieve this, existing
ice users are negatively impacted, so there has been a movement away from
special events in recent years. Staff are confident these additional ice pads will
allow us to grow this area of our business.
■ It is clear that the current supply of especially prime ice time is insufficient to meet
current and future needs as the population increases and municipal and user group
programs seek to expand.
■ The project team is conservatively confident that the current under -supply of ice time
currently exceeds one ice pad, and based on the population growth alone over the
next few years (5,000 people by 2021), there will be sufficient demand by the time
the South Bowmanville Recreation Centre is operational.
Feasibility Study for the South Bowmanville Recreation Centre, 2019
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Architects Inc.
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3.5.8 Key Information about Aquatic Facilities
■ Facilities include:
o Courtice Community Complex aquatic facility — 25 metre leisure -style pool x 6
lanes, teaching pool, whirlpool and sauna
o Diane Hamre Recreation Complex (25 metre rectangular pool x 6 lanes),
teaching pool, whirlpool and sauna
o Alan Strike Aquatic and Squash Centre — 25 metre rectangular pool x 6 lanes,
whirlpool, sauna, upper and lower viewing areas with limited occupancy, narrow
pool decks, starting blocks, shallow end is 1 m deep - sanctioned by FINA for
competitions
■ Most pool uses are program -based and operated by the Municipality.
■ There is increasing demand for registered programs and public swims, with offerings
influenced by pool types and availability, as well as staffing availability.
■ There is also increasing demand for therapeutic/warm water pool
programs/activities, as well as women -only swimming (with privacy implications).
■ The type of programming that can be offered at municipal pools is determined by
available resources.
■ Facility utilization was at about 65% in 2017.
■ Based on recent trends in utilization and anticipated growth in demand, it is
expected that the current municipal indoor pool supply will be fully utilized in 4-7
years.
■ The existing pools and programs are meeting most current needs.
■ As the Clarington Swim Club requests more pool time at the Alan Strike Aquatic and
Squash Centre, this will be at the expense of community programming.
■ A new high -appeal aquatic facility at the South Bowmanville Recreation Centre will
attract much of the program -based use at the Alan Strike Aquatic and Squash
Centre.
■ The recent severe shortage of lifeguards and instructors is a major issue which
could impact the ability to maintain current and support expanded services.
3.5.9 Key Information about FitnessMellness Facilities
■ Facilities include:
o Courtice Fitness Training Centre — approx. 6,000 sf2., approximately 1,200
members — offering Fitness Basic, Fitness Plus, Group Fitness, Squash and
Swim/Skate membership packages
o Group fitness programs are offered in multipurpose rooms in other municipal
facilities
o Seven commercial fitness/wellness operations in Bowmanville, two in Courtice
and one in Newcastle, plus two gymnastic clubs and two martial arts centres
located in Bowmanville
Feasibility Study for the South Bowmanville Recreation Centre, 2019
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■ The 11 municipal and commercial operations equate to 1 facility:9,550 population
(based on an estimated population of 105,000). If the three Curves operations and
the Wellness Path are not included (since they are not comparable full -service
fitness operations), the ratio would be 1:13,125 population. North American
research indicates that 18-20% of the population belongs to a fitness club or has
access to home -based fitness equipment. A population of 20,000 is generally
considered minimum to support a profitable full -service fitness operation. Therefore,
with a current ratio of 1 full -service fitness operation per 13,125 population in
Clarington, it would appear that there would currently be considerable competition
for another full -service fitness operation. However, a growing population will
increase demand. At the current ratio of full -service fitness facilities, a population of
140,400 would support 10.7 facilities.
■ Participation in group fitness is increasing - all levels, but especially for more
challenging programs (a local and national trend). Registration in municipal group
fitness programs increased from 24,165 in 2015 to 31,603 in 2018.
■ Requests are increasing for dryland training, as well as team and group training.
■ Popular programs include: Weight Loss Challenge, Learn to Lift and OCR classes
are offering participants competition, challenges, motivation and variety.
■ There is increasing demand for an indoor walking/running track (a local and national
trend linked to increasing demand for outdoor walking, running and hiking). The
best opportunity for indoor walking in Clarington is at the indoor soccer facility where
people walk around/on the artificial turf field. It is estimated that there are 7,500 to
8,000 person -visits per year at this facility for walking.
3.5.10 Other Local Recreation Trends
■ Increasing demand for unstructured play and programs, drop -ins, pay-as-you-go,
low fee/no fee opportunities (e.g., youth open gym). People want more flexibility in
their leisure activities schedule.
■ Camp Activities — increasing demand for specialty, educational and experiential
camps (e.g., cooking, science, outdoor play).
■ Increasing demand for preschool, educational, short -duration classes (less than one
hour) and preparation for entry to kindergarten.
■ Increasing demand for entry level programs and life-long learning.
3.5.11 National Leisure Trends Relevant to the Proposed Facility
The following are national trends in demand for leisure and facility provision that relate
to the proposed South Bowmanville Recreation Centre.
■ Trend toward multi -facility culture and recreation facilities, sometimes including other
municipal facilities such as a library, a municipal service centre, fire/EMS facility, etc.
■ Partnership opportunities in facility provision are increasing.
■ Barrier -free facility design has become a `must'.
■ Environmentally friendly/energy-efficient facility design is increasingly popular.
Feasibility Study for the South Bowmanville Recreation Centre, 2019
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Architects Inc.
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■ Increasing popularity of facilities that can be repurposed as demands shift.
■ Aging infrastructure with implications for new, more functional and appealing and
expanding facilities.
■ Increasing popularity of unstructured and self -scheduled activities.
■ Demand for rigorous team and individual sports and recreation activities decline with
age, while less rigorous activities gain in popularity.
■ Since swimming is in demand through all age groups, demand should continue to be
strong, including strong and growing interest in women's-only, therapeutic and
fitness -based aquatics.
■ Interest in fitness/wellness is increasing across all age groups - further influenced by
above average educational attainment and income in Clarington.
■ Interest in arts and culture and life-long learning increases with age, income,
education and level of professionalism.
■ Interest by new Canadians in traditional Canadian recreation activities is usually
lower, while interest in activities such as cricket and soccer is stronger. For many
new Canadians, teaching their children to swim is a high priority.
3.6 Life Cycle Status of Municipality of Clarington Indoor Recreation Facilities
Of relevance to the proposed South Bowmanville Recreation Centre is the age,
condition, functionality and appeal of the Orono Arena and Community Centre, the
Darlington Sports Centre, the Newcastle Memorial Arena and the Alan Strike Aquatic
and Squash Centre. If one or more of the arenas is retired or repurposed within the
next 10-15 years, the under supply of ice pads will worsen. If the Alan Strike Aquatic
and Squash Centre is retired, the only competition aquatic facility (with significant
limitations) will be lost, along with the only squash courts in Clarington.
When determining current and future demand for the types of facilities to include in the
proposed South Bowmanville Recreation Centre, the future of these four facilities must
be considered. Although the detailed condition of the Newcastle and Orono arenas still
needs to be confirmed, their age suggests that a discussion on the long-term plan major
retrofit may be required in the near future. The Darlington Sports Centre underwent a
major retrofit in 2010 to extend its useful life to 2020-2025. Although the Alan Strike
Aquatic and Squash Centre was renovated in 2014, the aquatic portion of the facility
has design limitations that disqualifies it for higher level swim meets. The Clarington
Squash Club would like 4 single and 2 double courts included in the proposed
recreation centre, which would allow Clarington to host tournaments. However, the
current club membership does not require that many courts.
Feasibility Study for the South Bowmanville Recreation Centre, 2019
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Darlington Sports Centre
■ Built in 1975 (will be 50 years old in 2025)
■ $2.21VI renovation in 2010 to extend its useful life 10-15 years
■ As a single pad arena with only 4 dressing rooms, it falls short of current
expectations for and arena.
■ Due to the multi -level design, the facility also has accessibility challenges.
Alan Strike Aquatic and Squash Centre (formerly Clarington Fitness Centre)
■ Built in 1982 (will be 50 years old in 2032)
■ $3.51VI renovation in 2014 to extend its useful life cycle by 10-15 years
■ The pool design is limiting for aquatic lessons and some other programming/uses.
Orono Arena and Community Centre
■ Built in 1974 (will be 50 years old in 2024)
Newcastle Memorial Arena
■ Built in 1975 (will be 50 years old in 2025)
3.7 Conclusions and Implications for the Proposed Facility
3.7.1 Current Age Profile
Since the current population of Clarington is younger than the Ontario average, with a
significantly higher proportion of children, youth, and young and mid -age adults,
demand for the types of activities desired by a younger population and families with
children living at home should be above average. Since it is expected that Clarington
will continue to attract young families until after full build -out is reached, this pattern
should continue for at least another decade. Therefore, demand for the types of
facilities being considered for the South Bowmanville Recreation Centre (and
activities/programs that they will be able to accommodate) should continue to increase
in proportion to the growth in the population for at least another decade or until full build -
out is reached (e.g., arena, indoor aquatic facility, fitness/wellness facility, indoor
walking track, gymnasium, multipurpose program/activity rooms, child and youth
programming and libraries).
3.7.2 Above Average Household Income
Above average household income should continue to generate strong demand for
public services like culture and recreation - and may also generate above average
expectations for facility and programming quality, no matter the provider. Higher
income and a maturing and increasingly diverse and sophisticated community will also
generate increasing demand for arts and culture facilities and programming.
Feasibility Study for the South Bowmanville Recreation Centre, 2019
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3.7.3 Anticipated Population Growth and Change
With an expected increase of at least 35,000 people over the next 10-15 years, demand
for all types of culture and recreation activities and programs will continue to increase
from population growth alone. Based on trends in demand, fueled in part by an aging
population, interest in some activities will be greater than others.
With the Baby Boom generation aging from age 50-69 in 2016 to age 66-85 by 2031,
demand for activities of interest to an older generation will remain strong over the next
15 years, but should begin to peak around 2031 and then begin to decline in the
decades to follow. However, although that generation will have declined in size from
26% of the Clarington population in 2016 to around 15% by 2031, they are projected to
total around 20,000 in number at that time, which will represent a significant market with
their specific social, wellness and leisure needs.
As the millennial generation transitions from youth and young adults in 2016 to mid -age
adults by 2031, it is challenging to predict what that generation will desire for leisure as
they head into mid-life. By 2031, the percentage and numbers will have both increased
significantly from 26% (23,740) in 2016 to around 30% (39,830), which will represent a
very large market. It is likely that this population of 30- and 40-year olds will be
increasingly interested in improving their physical and mental wellbeing, life-long
learning, less rigorous sports and physical recreation, arts and culture, and family and
individual leisure activities. As this generation ages, the amount of time per person that
is annually spent participating in sporting activities will decline.
When the Municipality reaches full build -out population, the number of young families
moving into the community will begin to lessen and the population will begin the process
of aging in place. That will accelerate the aging of the population. One result will be
that demand for all types of rigorous indoor and outdoor recreation activities will either
stabilize or begin to decline. That will have implications for demand for facilities such as
arenas, sports fields, tennis courts, racquetball courts, squash courts, beach volleyball
courts and most indoor court activities. On the other hand, interest in less rigorous and
healthy culture and recreation activities and facilities will increase (e.g., linear activities,
pickle ball, cultural activities, wellness programs, life-long learning, arts and culture,
etc.).
Although the proportion of the Clarington population that is immigrant and
representative of visible minorities is well below that of the GTA, ethno-cultural diversity
will continue to increase in Clarington. This will eventually require the Municipality to
broaden its array of outdoor and indoor recreation facilities and programming to
maximize participation and support community wellbeing among all groups. As cultural
diversity increases, there will be a corresponding need to ensure that leisure
opportunities are provided for all cultural interests and in ways that relate to specific
Feasibility Study for the South Bowmanville Recreation Centre, 2019
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cultural norms. This will require a better understanding of barriers to participation, and
development and application of new strategies to increase participation.
Given that about 15% of Clarington's population has a disability and that percentage is
expected to increase to around 40 by 2040, it will be essential that facilities and
programs are designed to be inclusive and supportive of all residents, regardless of
ability.
3.7.4 Aging Infrastructure
Many municipal indoor recreation facilities have many years of useful life remaining.
However, being older facilities, the Darlington Sports Centre and to a lesser extent, the
Alan Strike Aquatic and Squash Centre have fewer years remaining in their useful life
cycle.
In 2010, a major renovation was completed at the Darlington Sports Centre that
included a new arena floor, refrigeration system, accessibility improvements and
mechanical, electrical and life safety systems upgrades. The objective of this work was
to extend the useful life of the facility by 10-15 years. In 2025, the facility will be 50
years old and although it currently provides a vital supply of ice during the winter
months and floor rental space during the spring and summer for lacrosse, the longer -
term future of this facility is not certain. As indicated in this report, there is demand for
year-round floor space for lacrosse and pickle ball, so consideration could be given to
re -purposing the facility in the future.
The Newcastle Memorial Arena and the Orono Arena and Community Centre are also
older facilities. They will both will be at or beyond 50 years old by 2025. Operations
Building Services staff have indicated that building condition audits are planned for
these two facilities in 2020. The findings of these audits will help inform the longer -term
plan for these two arenas.
As identified in the Indoor Recreation Facilities Development Strategy and re -stated in
this report, the proposed plan for additional indoor ice pads for the South Bowmanville
site has taken into consideration the age of these three single pad arenas. In addition
to addressing an immediate demand for additional ice time for both of Clarington's
minor sport organizations and the general public for drop -in programs, the two proposed
ice pads for the South Bowmanville Recreation Centre will augment the supply of ice
pads should any of the above facilities be retired as ice facilities in the near future. The
Indoor Recreation Facilities Development Strategy also recommended a re -assessment
of arena needs in 2023 before a decision on future ice pads is made.
In 2015, a major renovation was completed at the Alan Strike Aquatic and Squash
Centre that included family change facilities, expanded lobby and public viewing areas,
a new swimming pool filtration system, accessibility improvements and upgrades to the
mechanical, electrical and life safety systems. The objective of this work was to
improve the functionality of the facility and to extend its useful life by 10-15 years. In
Feasibility Study for the South Bowmanville Recreation Centre, 2019
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2032, the facility will be 50 years old and although it currently satisfies the needs of
many local residents as well as being the home of the Clarington Swim Club and
Clarington Squash Club, it is not designed to provide the types of programs and
services that can be provided at the newer aquatic facilities in Clarington. Since there is
no additional land available for expansion of this facility, the ability to make further
improvements is very limited. If no additional squash courts are provided at another
facility before the Alan Strike facility is retired, the impact of the loss of the courts at the
Alan Strick facility will have to be considered.
The Indoor Recreation Facilities Development Strategy proposed a new aquatic facility
at the South Bowmanville site to coincide with the Alan Strike facility nearing the fifty-
year mark. This additional/new aquatic facility, as well as the proposed renovation to
the Courtice Community Centre to provide a larger teaching pool and therapy pool in
the 2024-25 timeframe will provide adequate aquatic facilities to meet the needs of the
community to at least 2031 and a projected population of approximately 140,000.
3.7.5 Current and Future Demand for Culture and Recreation Facilities
Section 3.5 concluded that there is strong and growing demand for most of the culture
and recreation facilities being considered for the South Bowmanville Recreation Centre
(two ice pads, a double gymnasium, an indoor walking/running track, multipurpose
rooms and meeting rooms). By the time the South Bowmanville Recreation Centre
would be operational, municipal aquatic facilities will be nearing full capacity. With
anticipated increasing demand for fitness and wellness services and the projected
growth in the population of the Municipality (+ 35,000 by 2031), there should be
sufficient population to support one more full -service fitness facility when the population
reaches about 118,000 and a second additional facility when the population reaches
about 140,000 — based on the current ratio of facilities to population.
The research also noted numerous other facilities and features that should be
considered in planning this facility. Examples include:
■ A significant and well-appointed lobby with socializing space, quality food
services/cafe, information services and likely a municipal service counter. If a
branch library and Tourism Clarington are incorporated into the facility, they should
be accessed via the common lobby.
■ Childminding area/service.
■ Pro shop.
■ Off -ice warm-up/training facility
■ Ample storage throughout the facility.
■ An open and airy atmosphere/Good flow throughout the building.
■ An energy -efficient building/LEED certified.
■ Consider the facility to be a more broadly based `community' centre rather than a
`recreation' centre.
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■ Adjacent outdoor facilities and features to be considered include: Celebration
Square (public square/socializing/assembly area); children's play area and water
play feature, walkways/trails (with a link to the wider trail network); gardens (floral,
sensory, vegetable); skateboard facility; BMX track; beach volleyball courts; and
adult outdoor gym.
Although community demand was mixed for the branch library, it is likely that many
respondents to the household survey and participants at the Community Forum thought
that the branch library suggested for the South Bowmanville Recreation Centre would
replace the main branch library that is co -located with the Municipal offices in downtown
Bowmanville. Therefore, support for the branch library was likely much lower than
typical. Generally, a library that is co -located with a leisure centre is better utilized than
a stand-alone facility, and a few components can be shared among the facilities (lobby,
multipurpose rooms, childminding service, and food services).
Interest in locating the headquarters of Tourism Clarington at the South Bowmanville
Recreation Centre was mixed and weaker than for the recreation components. The
decision to locate Tourism Clarington at this facility should not be driven by public
demand, but rather by whether this location is best for this type of facility and service to
visitors to the community. The requirement for this space should be incorporated into
the space requirements of the Community Services Department.
3.7.6 Leisure Trends
As noted in Section 3.5.11, relevant national and local leisure trends in demand and
facility provision support the types of components and the nature of the proposed South
Bowmanville Recreation Centre.
3.7.7 Recommended Facility Components of the South Bowmanville Recreation Centre
Based on the 2017 Indoor Recreation Facilities Development Strategy and the
research and community engagement conducted for this study, the following are the key
facility components recommended for the South Bowmanville Recreation
Centre. Based on relative need, demand indicators and the capital costs for the total
program, the project team has recommended a two -phased approach for this facility. It
is noteworthy that the site master plan work completed prior to the construction of the
indoor soccer facility, the 2107 Indoor Recreation Facilities Development Strategy
and this most recent work have generally reached the same conclusions about this
facility.
Refer to Section 4.3 for a more detailed description of the recommended facility
components.
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Phase One
■ Twin -pad arena
■ Off -ice warm-up/training facility
■ Mini Stick area
■ Gymnasium
■ Indoor walking/running track
■ Multipurpose rooms
■ Indoor soccer facility (existing)
■ Branch library
■ Offices for the Community Services Department and Tourism Clarington
■ Childminding room
■ Quiet/sensory room
■ Large common lobby (reception area, food services, seating/socializing area,
temporary storage)
■ Ample storage (throughout the facility and for each major component)
■ Ample parking and an adequate on -site vehicular and pedestrian circulation system
■ Celebration square
■ Outdoor garden(s)
■ Outdoor walking path/trail
■ Outdoor fitness gym
■ Outdoor lacrosse bowl (existing)
■ If there is room, other outdoor facilities that complement the facility might be able to
be accommodated on the site.
Phase Two
■ Aquatic facility
■ Fitness centre
■ Change rooms and adequate storage to support the aquatic facility and fitness
centre
Chapter Four: The Facility Concept
4.1 Introduction
In this chapter, the site and facility are described, along with the detailed space/building
program, a high-level facility and site layout, and a Class D estimate of capital cost.
4.2 The Site
The South Bowmanville Community Park is being developed as a major indoor and
outdoor recreation site. This commenced with the construction of the indoor soccer
facility and outdoor lacrosse bowl. Following that was the construction of four baseball
diamonds and later, a football field. Any future outdoor facility expansion will occur on
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the southern portion of the site to the east of the football field. Future indoor facility
expansion will occur to the north and west of the indoor soccer facility.
An opportunity arose to locate excess fill on the site from construction of the Green
Road and Baseline Road intersection. That allowed the construction of temporary
soccer pitches to be constructed on the northern portion of the site, with the provision
that when future indoor facility development proceeded, the fields would be removed.
See Figure 1 which includes the indoor soccer facility and the outdoor fields.
The portion of the site that is allocated for future indoor facility expansion (South
Bowmanville Recreation Centre) is 15.5 acres. The removal of the temporary fields will
include stripping some of the material that was imported to the site.
As there were no major site condition issues identified during the construction of the
soccer facility, it is not expected that there will be any major concerns incurred with the
development of the remainder of the property. Regardless, adequate geotechnical
testing will be completed prior to a final facility design to mitigate any potential problems
during the construction stage.
Currently, the main access to this community park is off Baseline Road. The access
road that links to the indoor soccer facility and the outdoor sports facilities will have to
be re -aligned to accommodate the construction of the South Bowmanville Recreation
Centre and parking. There is also a secondary access to the west baseball field parking
lot off Green Road. Consideration for the internal roadway and parking lot work has
been incorporated into the capital costing. However, any required improvements to
Baseline Road or Green Road have not been accounted for in the budget. A traffic
management plan may be necessary during the early stages of design.
With the amount of hard surfaces that will result for development of the South
Bowmanville Recreation Centre, on -site storm water management will need to be
factored in, especially if the capacity of the existing pond to the east of the lacrosse
bowl will not accommodate the increased rain water run-off that will be created. That will
be accomplished via another storm water pond or underground storage tanks. A Storm
water Management Plan will be completed in conjunction with the detailed facility design
phase.
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Figure 1: Site of the South Bowmanville Recreation Centre
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4.3 Description of the Proposed Facility and Components
4.3.1 The Facility Concept
Community recreation centres are becoming more important as community `hubs' or
focal points of activity, engagement and interaction. It's becoming increasingly common
for libraries/learning commons, performance facilities, teaching kitchens, municipal
service counters, and health and wellness facilities to be co -located with active
recreation, sport and fitness facilities. The concept for the South Bowmanville
Recreation Centre is intended to be a community hub
As an addition to the existing Bowmanville Indoor Soccer facility and outdoor lacrosse
bowl, the design of the South Bowmanville Recreation Centre places the major program
areas to the north and west to take advantage of exposure to natural light, relationships
of similar use, and by type of use. As such, the branch library faces north to Baseline
Road to bring animation to the main facade of the building and to begin to develop the
public face along with the multi -purpose rooms. The gymnasium and the twin pad arena
are more internalized as these spaces only require diffused light. The natatorium takes
advantage of the west facade bringing light into the space throughout the day.
The gymnasium and multipurpose rooms are located adjacent one another in case an
event requires both facilities. These two facilities are located at the front of the complex
to allow direct access. The fitness centre and aquatic facility are located adjacent to
each other to share the changing rooms. The arena facility is located on the east side
so that the back of this facility is out of sight and provides an adequate location for the
snow dump.
Circulation is based on a simple cruciform that allows users ease in wayfinding and
promotes interaction within the building. This interaction is further promoted with the
ability to of see multiple spaces from each of the corridors. As an example, as one
walks to and into the building from the west, they can see into the gymnasium and
natatorium. Once inside the building, the view is to the library, the rinks and up to
programming areas on the second level. This interaction and connection will foster
interaction of visitors who may be in the complex for different reasons. Picture two
neighbours running into one other at the cafe. One is there because their teenager is at
hockey practice and the other because they've just finished a yoga class. They decide
to go to the library together because there is a lecture that they're both interested in.
The architecture promotes these interactions and to helps with community -building.
Please refer to Figures 2 and 3 (Preliminary Concept of the South Bowmanville
Recreation Centre - Levels 1 and 2). This is the preferred design concept of several
that were developed. Much more detail will be provided, and some changes to the
layout will likely be made at the next stage of facility design.
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Since the need for and priority of the aquatic facility (natatorium) and fitness centre are
a little behind the other components as documented in Chapter 3, and there are funding
limits associated with the Investing in Canada Infrastructure Program (Community
Culture and Recreation), it is recommended that South Bowmanville Recreation Centre
be phased — with the aquatic and fitness facilities, along with the associated change
rooms and storage be allocated to a later phase.
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Figure 2: South Bowmanville Recreation Centre Preliminary Concept — Level 1
Feasibility Study for the South Bowmanville Recreation Centre, 2019
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Figure 3: South Bowmanville Recreation Centre Preliminary Concept — Level 2
Feasibility Study for the South Bowmanville Recreation Centre, 2019
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4.3.2 Components of the Proposed Facility
Based on the recommendation contained in Section 3.7, the following are the key
components of Phase One and Two of the South Bowmanville Recreation Centre
(Tables 9 and 10). Important features of each facility component and the amount of
space allocated to each is also provided.
Table 9: Space Program — Phase One of the South Bowmanville Recreation
Centre
Municipality of Clarington, 2019
Twin Pad Arena 63,190
■ Ice surface size: NHL size for each pad — with rear outside
entrance to each pad
• Seating: 300 each side — heated (bench or individual seats to be
determined) + barrier -free spaces and standing room
■ Players dressing rooms: 8 each pad - automatic doors to dressing
rooms and wide hallways accessing dressing rooms
■ Large players benches, with off -ice access
■ Time -keepers box: closed with off -ice access
■ Referee dressing rooms: male and female rooms of sufficient size
to accommodate 8 people at a time for each pad + 4 more people
at change -over times — locate in isolation of dressing rooms
■ Summer ice each pad — with larger refrigeration room
■ Elevator
■ Warm viewing area — possibly from lobby
■ Mini stick area: possibly between ice pads on upper level —
accessible from spectator seating
■ Off -ice training room/warm-up area
■ Storage: above average amount — adequate air quality
■ Staff office and workshop
■ Air conditioned
■ Adequate sound system
■ Enerav-efficient facilitv
Gymnasium 11,700
■ Dividable into 2 or 3 spaces
■ High school/college size basketball court with adequate out-of-
bounds space
■ Multifunctional space to accommodate gym sports, floor -based
fitness classes and children/teen drop -in programs and camps -
as well as other activities (trade and art shows, public gatherings,
performances, etc.) — therefore, better acoustics than a typical
gym
■ Wooden sprung floor
■ Portable stage
■ Men's and women's chanae rooms
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Components
■ Official's room
■ No glare
■ Adequate storage accessible from each of the three components
■ Main floor viewing area with motorized curtain to provide privacy
■ Access to pool change rooms
■ Access to outdoor gardens and celebration square
Multipurpose Program Rooms
7,550
■ 3,000 sf2 x 2 — each dividable into 2 rooms — kitchenette,
washroom and storage accessible to each of the 4 rooms — each
AV -equipped
■ 12' — 14' ceiling height
■ Kitchen (accessible from both sides of the multipurpose room)
■ Natural light — curtained
■ Access to outdoor gardens and celebration square
Running/Walking Track
3,000
■ 3-lane
■ Elevated around the gymnasium
■ Provide retractable privacy curtain
Branch Library
10,000
■ Access from main lobby/entrance to the recreation centre
■ Share multipurpose program space and meeting rooms
Staff Areas and Offices for Community Services Department
5,600
Office and Clarington Tourism
■ Including office for facility staff, storage, meeting room,
lunchroom/staff room, washrooms
■ Customer service counter in lobby
Child Minding Room
1,000
Quiet/Sensory Room
200
Lobby and Ground Floor Circulation
8,020
■ Large, airy, bright space with open area for small gatherings and
to accommodate tournament crowds
■ Good sight lines to key activity components
■ Customer service counters for Community Services Department,
Library and Clarington Tourism
■ Food service facility and counter
■ Appealing seating cluster and lounge area
■ Easily accessible storage area for hockey bags — with customers
are using the lobby (milling about and eating)
■ Media wall for community information, library information and
Clarington Tourism
■ Direct access to compatible outdoor spaces (Celebration Square,
sensory garden, children's play area, outdoor gym, etc.)
Public Washrooms (ground and upper level)
1,750
Building Services (custodial, electrical room, receiving,
6,615
communications, elevator equipment room, sprinkler room,
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Components
garbage/recycling room, electrical room, generator room, mechanical
room)
Sub -total 118,625
Gross -up (25%) 29,625
Total Building Area — Phase One 148,281
Table 10: Space Program — Phase Two of the South Bowmanville Recreation
Centre
Municipality of Clarington, 2019
Components
Aquatic Facility
16,040
■ 8 lane x 25 metre tank - with starting blocks and sufficiently wide
deck area to meet sanctioned provincial competitions - moveable
floor? — no diving boards
■ Adequate on -deck storage
■ Viewing area — elevated - accommodate at least 300 spectators
■ Main floor viewing area with motorized curtain to provide privacy
■ Therapeutic tank — larger than typical
■ Change rooms — male, female, family and lifeguard
■ Lifeguard and supervisor's offices
■ Large filtration and mechanical room
■ Natural lighting
■ Adequate storage
Aquatic and Fitness Facility Change Rooms
4,500
Fitness Facility
8,200
■ Strength and conditioning room/gym
■ Spinning room/area
■ Aerobic/group fitness area
■ Assessment room(s)
■ Entrance/control point/staff office and work area
■ Adequate storage
Sub -total
28,7185
Gross -up (25%)
7,185
Total Building Area — Phase Two
35,925
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4.4 Estimate of Capital Cost
Table 11:
Estimate of Capital Construction Cost, South Bowmanville Recreation Centre,
Municipality of Clarington
Phases and Components
Phase One
Lobby, circulation, public washrooms, child minding
room, quiet/sensory room
10,970
1,019
$3,390,000
Twin -pad Arena, including the warm-up and mini
stick areas
63,190
5,871
$16,416,000
Gymnasium, including the walking/running track
14,700
1,366
$4,282,000
Multipurpose Rooms
7,550
701
2,519,000
Library
10,000
929
$4,500,000
Staff Area (Department of Community Services,
Clarington Tourism, Facility Operations)
5,600
520
$1,719,600
Building Services
6,615
615
$1,819,125
Sub -total
118,626
11,021
$34,651,715
Gross -up (25%)
($250/ft2)
29,656
2,755
$7,414,063
Total Gross Area and Total Net Area Cost
($284/ft2)
148,281
13,776
$42,065,788
Phase Two
Aquatic Facility (Natatorium) - including storage
16,040
1,490
$8,498,050
Fitness Centre - including storage
8,200
762
$3,140,000
Changing Rooms for Natatorium and Fitness
Centre
4,500
418
$1,777,500
Sub -total
28,740
2,670
$13,415,550
Gross -up (25%)
($250/ft2)
7,185
668
$1,796,250
Phasing Premium (10%)
$1,341,555
Total Gross Area and Total Net Area Cost
($461 ft2)
35,025
3,338
$16,553,355
Phases One and Two
Total Net Area and Total Net Area Cost
147,365
13,691
$48,067,275
Gross -up (25%)
($250/ft2)
36,841
3,423
$9,210,313
Total Gross Area and Total Cost
($311 /ft2)
184,206
17,113
$57,277,588
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4.5 Anticipated Impact of the Proposed Facility on Existing Facilities and
Businesses
Since there will be sufficient demand for most of the prime ice time that will be available
in the twin -pad arena by the time the South Bowmanville Recreation Centre opens,
there should be minimal negative impact on existing arenas in Clarington. Given that
Clarington staff will be responsible for allocating ice time at all seven municipal ice pads,
a fair allocation of ice time at the new ice pads will occur. That will mean that
organizations will not be allowed to `cherry pick' prime hours at the new facility that
could impact the optimum use of the other ice pads. In addition to satisfying immediate
pent-up demand and future growth needs for ice, this would also be a strategic plan for a future
date when the older arena facilities need to be re -assessed. Given that the ice pad at the
Darlington Sports Centre is scheduled to be decommissioned in the near future, the
new twin -pad arena will only provide one additional ice pad for the Municipality in the
near term.
Given that the aquatic facility is being recommended for a later phase, there will be no
immediate impact on the Alan Strike Aquatic and Squash Centre or any of the other
municipal aquatic facilities in Clarington. A decision will have to be made about the
future of that facility, especially given that the Clarington Swim Club and the Clarington
Squash Club have not indicated a desire to continue to utilize it. The design of the main
pool does not accommodate a wide variety of swimming lessons and would not be a
feasible option for municipal programs, especially compared to a contemporary aquatic
facility located at South Bowmanville Recreation Centre.
When the Alan Strike Aquatic and Squash Centre is decommissioned, a decision about
providing public squash courts somewhere in Clarington, and the nature of those
facilities will have to be made. An assessment of demand at that time, and of municipal
responsibility should inform that decision.
Since the proposed full -service fitness/wellness centre is being recommended for a later
phase, there will be no immediate impact on the fitness/wellness centre at the Courtice
Complex and commercial fitness operations in Clarington and nearby. If a
fitness/wellness facility is considered as a future phase of the South Bowmanville
Recreation Centre, an assessment of demand and the impact on other operations
should be made at that time.
It is not expected the addition of a full-size gymnasium at the South Bowmanville
Recreation Centre will have any impact on the usage of Diane Hamre Recreation
Complex as municipal gymnasium space is very limited and growth of programs,
particularly in Bowmanville cannot effectively be accommodated through rental of local
school gymnasia.
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Appendix A: Reports and Information Reviewed
In addition to the documents reviewed for the 2017 Indoor Recreation Facilities
Development Strategy that were referenced in Section 2.2, the following documents
were reviewed for this feasibility study.
1. Indoor Recreation Facilities Development Strategy, Monteith -Brown, January 2017
2. Memorandum to the Municipality of Clarington Re: Clarington Community Forecast
Update 2013, Hemson Consulting Ltd, January 2013
3. Places to Grow — Growth Plan for the Greater Golden Horseshoe (2019)
4. Clarington Growth Trends 2017, Municipality of Clarington Planning Services
Department, 2017
5. Clarington Growth Trends 2018, Municipality of Clarington Planning Services
Department, 2018
6. Demographic Information 2018, Clarington Board of Trade and Office of Economic
Development
7. Statistics Canada, 2016 Census, Community Profile, Municipality of Clarington
Census Subdivision
8. Statistics Canada, 2016 Census, Community Profile, Bowmanville Population Centre
9. Statistics Canada, 2016 Census, Community Profile, Regional Municipality of
Durham Census Subdivision
10. Statistics Canada, 2016 Census, Community Profile, Province of Ontario
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