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Staff Report
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Report To: Joint Committees
Date of Meeting: September 14, 2020
Submitted By: Steve Brake, Director of Public Works
Reviewed By: Andrew C. Allison, CAO
File Number:
Report Subject: Ice Skating Trail
Recommendations:
1. That Report PWD-001-20 be received;
Report Number: PWD-001-20
Resolution#: JC-119-20, GG-378-20,
GG-416-20, GG-417-20
By-law Number:
2. That the costs to construct a skating trail be included in a future D.C. Study and by-
law; and
3. That all interested parties listed in Report PWD-001-20 and any delegations be
advised of Council's decision.
Municipality of Clarington
Report PWD-001-20
Report Overview
Page 2
Skating trails have become increasingly popular in many municipalities to provide outdoor
winter recreation for residents. Several municipalities in and around the GTA including
Brampton, Hamilton, Richmond Hill, and Toronto have built refrigerated skating trails over
the last decade. Other municipalities are in varying stages of design for the construction of
refrigerated skating trails.
The intent of this report is to provide Council with up to date costs, potential locations, and
maintenance requirements for a skating trail in Clarington.
1. Background
1.1 At a meeting held on January 20, 2020, the Council of the Municipality of Clarington
approved the following Resolution #GG-025-20:
Whereas Clarington has over twenty-one kilometres of trails and is committed to
promoting active and healthy living, and
Whereas ice skating trails are currently one of the most popular winter activities in
Ontario; and Whereas Clarington residents have expressed a strong support for an
ice skating trail in Bowmanville;
Now therefore be it resolved that:
Staff investigate and report back on building and operating a one kilometre
looped ice skating trail similar to the trail located at Arrowhead Provincial Park
in the north quadrant of the former Bowmanville Zoo property, i.e. north of the
bridge over Soper Creek, with Staff considering funding options, including
having the cost of annual trail construction, operation and maintenance to be
paid or subsidized via skate trail / park user fee (i.e. $20 per vehicle);
2. Staff investigate and report back on alternate or additional future sites for ice
skating trails, and potential skate trail connectivity; including:
a. The Soper Creek floodplain east of Hobbs Drive (parking at Soper
Creek Park and on south side of Highway 2 at Bowmanville Zoo, with
easy access to bring in Zamboni);
b. The future Camp 30 site.
Municipality of Clarington
Report PWD-001-20
Page 3
3. Staff report back on whether ice resurfacing equipment can be borrowed from
existing facilities or if specialized equipment needs to be purchased (i.e. a
Zamboni attachment for a tractor; water truck);
4. Staff be invited to seek input from other Municipalities which operate ice
skating trails; and
5. Staff report back to Committee by July 2020 with recommendations for
inclusion in the 2021 budget.
1.2 Due to delays in receiving detailed information from other sources regarding the design,
construction and operation of skating trails, this report was deferred to the first Joint
Committees meeting following summer recess still allowing for the project to be
considered in the 2021 Capital Budget.
2. Outdoor Ice
2.1 Clarington currently has a policy and process in place to assist residents with the
provision of natural outdoor ice rinks. Interested parties contact the municipality and if
they have a minimum of four volunteers and proof of insurance naming the municipality
as co-insured, they can receive training and equipment from the Public Works
Department to establish an outdoor rink. Since the policy was established in 2017 there
has been limited uptake from the community. To date, only three parks have had
outdoor rinks: Tyrone Community Park; Pearce Farm Park; and Guildwood Park.
Natural outdoor ice is totally weather dependant and the availability for use has varied
each year depending on conditions. Consistently below freezing temperatures are
necessary for the development of natural ice.
2.2 There are several non -refrigerated skating trails in northern Ontario, including the 1.3
km looped skating trail in Arrowhead Provincial Park, a 1.5 km skating trail at Discovery
Harbour in Penetanguishene, and a 1.2 km skating trail at Cranberry Marsh in Bala. The
weather conditions in northern Ontario make those skating trails usable for 6-8 weeks
each year. There is a fee to use these natural skating trails either per person or per
vehicle ranging from $8-$20.
2.3 The weather in Durham Region during many recent winters has not been conducive to
natural ice. Based on historical data, Clarington received on average a total of twenty-
five days where the temperature was -10' or colder between the years 2000 to 2009. A
future climate summary prepared by the Region of Durham suggests that during the
2040 to 2049-time horizon, there will be zero days when the air temperature will be less
than -10' in Clarington. The general trend is towards higher temperatures, less snow
and more rain during the winter months in southern Ontario.
Municipality of Clarington
Report PWD-001-20
Page 4
2.4 Constructing a non -refrigerated skating trail in Clarington is not recommended given our
unpredictable weather and the costs and effort required to provide this service for a
limited number of days in an average year. Therefore, this report focuses on the
potential for a refrigerated municipal skating trail, like others in southern Ontario.
3. Municipal Skating Trails
3.1 Refrigerated municipal skating trails are growing in popularity in southern Ontario. At
one time outdoor ice rinks were designed as circular or oval pads for public skating
and/or hockey. Skating trails provide a unique experience of weaving through snow
covered gardens and trees along a curvilinear route. Many skating trails are also used
as concrete pathways during other seasons.
3.2 The municipalities that have built skating trails report they are extremely well used.
Refrigerated skating trails in southern Ontario commonly use a Zamboni or Olympia for
ice resurfacing and the equipment is kept on -site for the entire season. The frequency of
resurfacing depends on usage but at most municipal locations it is every two hours. The
typical length of season for refrigerated skating trails is from early December to late
March.
3.3 The first refrigerated skating trail in the GTA was built in 2010 at Colonel Samuel Smith
Park in Etobicoke. Since then, Brampton, Hamilton, Richmond Hill and Toronto have
constructed new refrigerated skating trails. Innisfil Township is in the process of
designing a refrigerated skating trail for the 2021 season.
3.4 The refrigerated skating trails in other municipalities are typically 200m-250m in length,
4m-5m wide and are free for the public to use. They also include:
• Building to house mechanical, electrical and refrigeration systems;
• Garage for ice re -surfacing equipment;
• Heated washrooms and skate change rooms;
• Lights for evening skating, and audio system; and
• Parking lot and connecting walkways.
Municipality of Clarington
Report PWD-001-20
4. Construction costs
Refrigerated Skating Trail
Page 5
4.1 Staff has received information from several municipalities regarding their capital costs
for recent and upcoming municipal skating trail projects. There are differences within
each, but based on these projects the following estimate was prepared for design and
construction of a 250m long, 5m wide refrigerated skating trail, including the additional
amenities typically built in conjunction with a skating trail:
Item
Estimated Cost
Skating Trail (1,250m2) with lighting, audio system, refrigeration
$2,200,000
equipment and concrete surface
Note: the estimated cost is based on a recent consultant estimate
of $1, 745 per m2 for the Innisfil skating trail
Standalone building with washrooms, skate change area,
$650,000
mechanical/electrical room, and Zamboni garage
Parking lot and walkways
$230,000
Design and construction inspection fees (15% construction value)
$462,000
Estimated total
$ 3,542,000 plus tax
Natural Skating Trail
4.2 A natural skating trail without refrigeration, while not recommended due to our climate,
would still require the installation of a 1,250m2 reinforced concrete pad to create a
250m long, 5m wide skating trail. The site would also require parking, walkway
connections, and a garage for ice resurfacing equipment. Since its availability would be
weather dependant, and much less frequent than a refrigerated skating trail, a portable
washroom/skate changing building could be rented each season. Based on the above
the approximate costs for a natural skating trail would be:
Item
Estimated Cost
Skating Trail (1,250m2) with lighting and concrete surface
$675,000
Parking lot and walkways
$230,000
Portable Washroom rental/year
$10,000
Zamboni garage
$125,000
Design and construction inspection fees (15% construction value)
$154,500
Municipality of Clarington
Report PWD-001-20
Page 6
Estimated total $1,184,500 plus tax
4.3 The above estimates are based on the use of existing Clarington ice resurfacing
equipment.
4.4 The availability of services such as hydro, water, and sewer will affect the actual costs
depending on the location.
5. Potential Sites
5.1 An ideal site for a skating trail would be a relatively flat, natural area to provide a unique
experience of skating in an outdoor environment.
5.2 Council directed staff to investigate three specific sites: (1) the former Bowmanville Zoo
site; (2) Camp 30 site; and (3) Soper Creek Park east of Hobbs Avenue.
5.3 Staff have received preliminary comments from CLOCA regarding the feasibility of
building on both the former Zoo site and Soper Creek Park as they are both within the
floodplain. Given the footprint, grading and electrical components required for a
refrigerated skating trail and associated buildings, CLOCA would not support either site
if a new building is included as part of the project.
Former Bowmanville Zoo
Municipality of Clarington
Report PWD-001-20
Page 7
5.4 The former zoo site is large enough to accommodate a 250m skating trail and the other
associated amenities i.e. parking lot, standalone building for public use and Zamboni
storage. However, because the Zoo site is in the floodplain, a new building could not be
included. A building is crucial to house ice resurfacing equipment and the electrical and
mechanical components of a refrigerated skating trail as well as public washrooms.
Soper Creek Park East of Hobbs Avenue
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5.5 Soper Creek Park could physically accommodate a 250m long skating trail east of
Hobbs Drive, just north of the existing parking lot and ball field. A skating trail at that
location would require the removal of some existing trees and would be approximately
10-15m from the rear yards of existing residences on Hobbs Drive and Morgandale
Crescent. Since it would also be located in a floodplain the construction of a new
building would not be permitted.
Municipality of Clarington
Report PWD-001-20
Camp 30/Jury Lands
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5.6 The municipality currently does not own the Camp 30/Jury Lands. The site is not in the
floodplain so the construction of a skating trail and associated amenities would be
permitted. The site currently lacks the services required to operate a skating trail,
however the proposed residential development that may occur around the Camp
30/Jury Lands would extend the services to the site. The Jury Lands Urban Design
Master Plan, prepared to provide recommendations about future uses, recommends a
refrigerated skating trail as a potential feature on the site.
Municipality of Clarington
Report PWD-001-20
Clarington Fields/South Bowmanville Recreation Complex
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5.7 Another potential location is Clarington Fields Park. There is space south of the existing
Indoor Soccer parking lot to build a 250m skating trail which would not be impacted by
the future expansion of the South Bowmanville Recreation Complex. The future indoor
recreation complex could provide most of the complementary infrastructure required
such as the ice resurfacing equipment, washrooms, a location to house mechanical and
electrical equipment, and parking. A Refrigeration Plant would also be included within
the South Bowmanville Recreation Complex for the indoor ice at the facility. Based on
these complementary uses this site could be the least expensive option to provide a
skating trail.
6. Operating Costs
6.1 The municipalities contacted for this report did not readily have their annual operation
costs available for their skating trails. Municipalities typically resurfaced their ice every
two hours between 10:OOAM and 10:OOPM for a 14-16 week season. Most skating trail
sites also have a staffed public washroom/skate change building available for the entire
season. Factoring in the costs to keep refrigerated ice for 14-16 weeks, staffing, and
utility costs it is estimated that the annual cost to operate and maintain a refrigerated
skating trail would be $250,000.
Municipality of Clarington
Report PWD-001-20
Funding and Cost Recovery Opportunities
Page 10
6.2 Our Development Charges consultant Watson & Associates provided the following
opinion regarding the DC eligibility of a skating trail in Clarington:
"Regarding skating trails, these amenities could be D.C. eligible, although there
may be a larger benefit to existing development as it is a specialty amenity that is
not currently offered. Before bringing the costs into a future D.C. Study and by-
law, a recognition of the benefit to existing development should be considered."
6.3 Typically, new park development is related to growth and is funded 90% from
development charges and 10% tax levy. A skating trail would require a greater
percentage from tax levy or other non -DC sources due to its benefit to existing
development.
6.4 While none of the municipalities contacted for this report have implemented user fees
for their skating trails, the general consensus was that based on their popularity a user
fee could be charged as a way to recover costs for annual maintenance and operating
expenses.
6.5 Skating trails in northern Ontario, whether on private sites or in provincial parks, do
charge for usage based on per person or per vehicle ranging from $8-$20. It is therefore
reasonable to expect that users would be willing to pay to use an outdoor skating trail in
Clarington.
7. Concurrence
This report has been reviewed by the Director of Community Services who concurs with
the recommendations.
8. Conclusion
8.1 Outdoor skating has always been an important cultural and recreational component of
Canadian winters. Climate change has reduced the opportunity for many parts of the
country to provide natural ice in outdoor settings, and refrigerated skating trails are
becoming more common in municipalities. Municipalities that have built them report that
they are extremely popular with residents and visitors.
Municipality of Clarington Page 11
Report PWD-001-20
8.2 The best potential sites in Bowmanville are the Camp 30/Jury Lands and the South
Bowmanville/Clarington Fields site. The Camp 30/Jury Lands site is not owned by the
municipality and the services required will not be extended to the site until the proposed
residential development is constructed. The future ice pads proposed at the South
Bowmanville/Clarington Fields site will include a refrigeration plant that could be
designed to include an outdoor skating trail. Washrooms and a Zamboni storage area
would also be available within the building expansion.
8.3 The main reason that skating trails are still relatively rare is the high cost to build,
operate and maintain. Based on the comments from our Development Charges
consultant Watson & Associates, a large portion of the capital costs to construct a
skating trail would have to come from sources other than DC.
8.4 There are also many other competing priorities for park and trail funding and using a
large portion of DC funds to construct a skating trail in the immediate future would
reduce the funds available for the construction of parks and trails in new
neighbourhoods.
8.5 It is respectfully recommended that the costs to construct a skating trail be referred to a
future D.C. Study.
Staff Contact: Peter Windolf, Park Manager, 905-326-3379, Ext. 2307 or
pwindolf@clarington.net.
Attachments: None
Interested Parties:
There are no interested parties to be notified of Council's decision.