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Staff Report
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Report To: General Government Committee
Date of Meeting: May 10, 2021 Report Number: CSD-003-21
Submitted By: George Acorn, Director of Community Services
Reviewed By: Andrew C. Allison, CAO Resolution#:*
File Number: By-law Number:
Report Subject: Future Indoor Recreation Facility
Recommendations:
1. That Report CSD-003-21 be received;
2. That Council provide direction on the preferred option and associated actions as
presented in this report:
Option 1 -]Original Facility Plan and Location
C That Council approve the proposed indoor recreation facility plan, as
recommended in Report CSD-009-19, to be located at the South Bowmanville
Community Park;
F- That Council approve the total project budget of $50,000,000 to be funded, as
recommended in Report FND-031-20 through debenture debt financing with
the Region of Durham;
F- That Council direct staff to issue a Request for Proposal (RFP) for the
architectural and engineering design for the new facility;
C That staff report back to Council to present the final facility design for
approval; and
L That, following design approval, staff issue a tender to prequalified general
contractors for the construction of the new recreation facility;
Municipality of Clarington Page 2
Report CSD-003-21
Option 2 -1 Further Consideration of a Public L Private Partnership (P3)
L That Council direct staff to issue an Expression of Interest (Market Sounding)
for the design, construction, financing, operation and maintenance of a new
recreation facility, to be located at the South Bowmanville Community Park;
and
That staff report back on the results of the Expression of Interest, as well as
providing the estimated costs for the provision of P3 advisory services and
independent financial and legal services that would be required to move
forward with a P3;
Option 3 -1 Consideration of an Alternate Location
L That Council provide staff direction on a preferred location, as identified in this
report, or otherwise;
That staff be directed to prepare a conceptual facility design plan for the
preferred location;
L That staff be directed to prepare a detailed project budget, for this location,
that would include design/engineering, project management, and construction
costs, as well as land acquisition and site servicing costs, if necessary;
L That the Director of Financial Services prepare updated funding options for
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❑ That Council approve the costs to prepare the conceptual plans and project
budget, not to exceed $25,000, which will be funded from the Community
Services Capital Reserve Fund;
❑ That staff report back to Council, with the above noted information, this fall;
and
3. That all interested parties listed in Report CSD-003-21 and any delegations be
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Municipality of Clarington
Report CSD-003-21
Report Overview
Page 3
At the February 1, 2021 Special General Government Committee Meeting, Council directed
staff to undertake a request for information from qualified parties for Public -Private
Partnership (P3) opportunities and design build options for a proposed new recreation facility
or expansion. They also directed staff to consider potential alternative locations to the South
Bowmanville Recreation Centre site and propose possible components for this facility. Staff
have investigated the requests and the findings are outlined below.
To provide Council options for consideration, staff have identified four potential locations in
Bowmanville for siting a new indoor recreation centre. In addition to the originally proposed
location in south Bowmanville on Baseline Road, an expansion on the Garnet Rickard site
has also been identified. Two other possible locations include future Community Park sites
at Liberty Street and Concession Road 3 and Lambs Road and Concession Street.
This report also includes a summary of the recommendations that were included in the
Indoor Facilities Development Strategy that was presented, for information, to Council in
January 2017. This Strategy identified a comprehensive indoor facility expansion plan, that
would guide facility development, for the period 2016 - 2031. In addition to the South
Bowmanville project, major facility expansions were identified for South Courtice Arena,
Courtice Community Complex and Diane Hamre Recreation Complex (known then as
Newcastle & District Recreation Complex).
1. Background
1.1 &R❑CFLCV[6%D MLF[3®❑[E[I❑❑❑LLU2022 included VVHIJFUCiU HYHOS-V1H[FR FHSW
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. —Staff presented Report CSD-009-19 at the General Government
Meeting of October 15, 2019. The report identified a Phase 1 Facility Program that
would include a twin pad arena, indoor walking track, gymnasium, multi -purpose
community/program space, administrative office and tourism space, and a branch library
at the Bowmanville Indoor Soccer location on Baseline Road in Bowmanville.
1.2 Council approved referring the project, with revisions, to the 2020 budget, and directed
staff to apply for funding through the Investing in Canada Infrastructure Program. Mid
way through 2020 staff were notified that this funding application was not successful.
1.3 At the Joint Committee meeting of September 14, 2020 Report FND-031-20 was
presented. This report, following the unsuccessful infrastructure funding application,
provided an alternative project funding plan to Council, that was seeking approval to
move forward on the design and construction of the South Bowmanville Recreation
Centre. Staff were recommending the project be funded through the issuing of a
debenture of $50,000,000 from Durham Region. It was estimated that approximately
74% of the total project cost was eligible for development charge funding, with the
remainder to be funded by the tax levy.
Municipality of Clarington Page 4
Report CSD-003-21
1.4 Following discussion by Members of Council, the report was referred to the 2021
budget. During these discussions, the matter of finding alternative project financing
options, such as a Public -Private Partnership (P3) was raised. Although specific
direction was not included in the approved resolution, staff subsequently undertook
researching the feasibility of utilizing the P3 model for this new community centre
project.
1.5 Report FSD-006-21, outlining the findings of the investigation into the option of a P3
Partnership for this facility, was considered at the February 1, 2021 Special General
Government Committee meeting. As a result, the following amended Resolution #GG-
085-21 was referred to staff to consider potential alternative locations and to propose
possible components:
17 ❑DVE HSRIYJ 6'-006-21 be received; and
That Staff be directed to undertake a request for information from qualified parties for:
a) private -public partnerships
Indoor Facilities Development Strategy
1.6 In January 2017, Community Services staff presented CSD-001-17 Indoor Facilities
Development Strategy to Council. To develop this Strategy, the Community Services
Department engaged the services of Monteith Brown Planning Consultants to prepare a
long -VP A1I ❑1RUVVH!3 IYHVSP Hd1Wl VM[O 11ELFISDUMANLIV14LGbor recreation
facilities.
1.7 The intent of the Strategy was to provide Council and staff with a framework to advance
indoor recreation facility development, to respond to public requests for future recreation
facilities and to provide a guide in determining facility components to meet the needs of
residents to 2031.
1.8 The research for the Strategy included a review of facility trends on a local / regional /
provincial and national level, providing insight applicable to Clarington. It also
considered our existing inventory of facilities, recognizing the age, expansion potential
and required upgrades at each of the existing sites.
1.9 In developing the Strategy, there was consultation with Members of Council, staff, key
stakeholders and the general public. Public Information Centres were hosted in
Courtice, Bowmanville, Newcastle and Orono.
1.10 Council passed Resolution #GG-035-❑❑E[7dD(5HSRLY46'-001-17, Indoor Facilities
Development Strategy, be referred back to staff to reprioritize a South Bowmanville pool
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Municipality of Clarington
Report CSD-003-21
CSD-009-19 South Bowmanville Recreation Centre
Page 5
1.11 CSD-009-19 was taken to the October 15, 2019 GGC meeting, recommending a
proposed Phase 1 and Phase 2 facility program, that the Phase 1 project budget of
$48,005,300 be referred to the 2020 budget, and that Council authorize staff to
complete the application for funding for this project through the Investing in Canada
Infrastructure Program.
1.12 At a meeting held on October 28, 2019, Council approved the following Resolutions:
That Report CSD-009-19 be received excluding section 2.4 of Report CSD-009-19 and
sections 3.51, 3.55, 3.59 of Attachment 1 to Report CSD-009-19;
That Council approve the proposed facility program as presented;
That Council refer the proposed Phase 1 project budget of $48,005,300 to the 2020
budget deliberations;
That Council authorize staff to complete the application for funding for this project as
prescribed in the Investing in Canada Infrastructure Program;
That all interested parties listed in Report CSD-009-19 and any delegations be advised
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That Staff report back to the October 28, 2019 Council meeting on the cost of adding a
wellness/fitness component, amongst other items, in place of the office space of 5,600
square feet.
#GG-467-19: That the following remaining portions of Report CSD-009-19 be received:
[Section 2.4 of Report CSD-009-10 and sections 3.51, 3.55, 3.59 of Attachment 1 to
Report CSD-009-19.
1.13 A memo to Council for the October 28, 2019 Council Meeting (Attachment 1) outlined
that staff met with the consulting team, and prepared a revised facility program, as
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facility and the associated impact on the overall project budget was provided.
1.14 The memo included that should Council approve the revised facility program to include
wellness/fitness, Resolution #C-286-03 would need to be rescinded. The Resolution
LIFO-GHG_Ib R-ILWH HRUHEHJVVH\/FZGHGZ❑$7MI[O L]AFISDMM[Clarington hereby
advises the local fitness facility owners that it will not enter into direct competition with
the local fitness industry in new facility construction; and THAT the Association of
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1.15 The October 28, 2019 memo was referred to the consideration of Report CSD-009-19.
Municipality of Clarington Page 6
Report CSD-003-21
1.16 Staff submitted a comprehensive application for funding of the South Bowmanville
Recreation Centre to the Investing in Canada Infrastructure Program in November of
2019 but was subsequently denied funding.
2. Recreation Facility Considerations - Bowmanville
South Bowmanville Baseline Road
2.1 Following the acquisition of three parcels of land in 2002 for the future South
Bowmanville Community Park, Community Services and Engineering staff prepared a
site master plan for future indoor and outdoor recreation. It was determined that indoor
construction would be situated on the portion of land adjacent to Baseline Road and
outdoor facilities would be planned for the southern portion from Green Road to Martin
Road.
2.2 Following budget approval in June 2003, the design on an indoor soccer and outdoor
lacrosse facility commenced. Additionally, a conceptual layout was prepared that
identified a plan for future indoor facility expansion. The plan was to build onto the
indoor soccer facility and extend to the west and north to Baseline Road. This
conceptual plan was the basis for the revised expansion plan presented to Council in
October 2019.
2.3 The site can accommodate both future phases of indoor facility expansion, as well as
the provision of adequate parking. Preliminary discussions began early in 2020 with
Engineering staff to discuss what adjacent road improvements would be needed,
including the possible relocation of the main entrance to better align with Westside
Drive. This site is also strategically located with good vehicular access from Green
Road, Bowmanville Avenue as well as 401 through the Bowmanville Avenue and Holt
Road interchanges.
2.4 Regional water/sewer and natural gas services are existing, as is storm water
management. It is expected upgrades to the servicing and storm water management will
be required and has been considered in the proposed project budget.
2.5 In 2007, Engineering staff coordinated the construction of temporary outdoor soccer
fields on the future facility location, utilizing excess fill from Green Road reconstruction
work. All parties were aware this was a temporary situation and that the fields would
need to be removed at such time as the indoor facility expansion began. Subject to
approval by Council for this location, staff will need to communicate the plan with the
Darlington Soccer Club and work with them to discuss options to minimize the impact to
their outdoor soccer program.
Municipality of Clarington
Report CSD-003-21
Garnet B. Rickard Recreation Complex
Page 7
2.6 Council has directed staff to consider constructing the new recreation facility on the site
of the Garnet B. Rickard Recreation Complex. In addition to the existing indoor facility,
there are two baseball fields, an outdoor playground area, a skateboard park, parking
for approximately 600 vehicles as well as the Clarington Emergency and Fire Services
Headquarters.
2.7 It is estimated that the existing baseball fields and playground area represent
approximately seven acres of green space. Given that the total proposed square
footage (Phase I and II) of the new facility is estimated at 184,000, it is feasible that this
could be constructed within that area. However, even a modest calculation of 600
additional parking spaces needed, could not be achieved at this location without
considering the relocation of the fire headquarters which is not recommended.
2.8 Due to the current demand for quality baseball fields in Clarington, two new fields would
need to be constructed and put into operation prior to the removal of the fields on this
site. Additionally, the skateboard park and outdoor playground would need to be
removed and reconstructed somewhere on the property.
2.9 Further to discussions with the Clarington Public Library Director, we have been advised
that, due to the proximity to their Main Branch, there is no interest in constructing a
branch location on this site. This would reduce the overall area of Phase I by 10,000
square feet and the budget by $4.5M. However, there remains interest to proceed with a
branch library on the other Bowmanville locations.
2.10 This location is situated at an extremely busy intersection and access to and from the
property can be challenging, especially during large indoor or outdoor events. This has
been evidenced in recent years with Junior hockey and lacrosse playoffs, fishing shows
and butter tart festivals as well as each year on Canada Day. Constructing additional
indoor recreation facilities on this site would more than double the daily vehicular traffic
and further exacerbate congestion on the adjoining roads. Major improvements to
entrances on to the site could be complicated as Highway 2 West and Regional Road
#57 (Bowmanville Avenue) are both Durham Region roads. This may restrict entrance
improvements to Stevens Road and Clarington Boulevard.
2.11 The Durham Region Works Department has advised us that existing sewer capacity is
available on Clarington Boulevard, with a future trunk sewer planned for Bowmanville
Avenue. However, the facility design plan would have to address a greater demand for
on -site storm water management.
Future Community Park Location [I Liberty Street and Concession Road #3
2.12 & OU J \R-] V 2 I I FM ®-IE2 3 EEED/ 3H R[LdMi& RP P M DLW& 3 T(BFCIAt-\/-
within the existing Bowmanville Urban BR❑❑CDUIII$ FFRLGLJ VVM2 3 —Community
Parks are designed to serve the recreational needs of several neighbourhoods,
providing outdoor and indoor recreational facilities, non -programmed open space and
linkages to the Regional and Municipal trail system. Community Parks shall have a size
of between 6 to 12 hectares. ❑
Municipality of Clarington
Report CSD-003-21
Page 8
2.13 The first future Community Park is identified for the property located at the north east
corner of Liberty Street and Concession Road #3 (see Attachment 2). This property falls
within the Soper Springs Secondary Plan area, which is currently in progress. Planning
staff have indicated a Plan completion for Summer/Fall 2022.
2.14 In the Terms of Reference for this Secondary Plan, the area is summarized as follows,
IThe site generally consists of farmland and woodland between a number of ditches or
tributaries of Soper Creek, draining towards the southeast. The site gradient drops
uniformly towards the southeast, having the grade difference of more than 30 m across
the site. This area includes lands which appear to be the headwaters for a number of
tributaries of the Soper Creek. Similar to the Northglen Neighbourhood in northwest
Bowmanville and the Farewell Heights Neighbourhood in north Courtice, Soper Springs
is located on the former Lake Iroquois Shoreline, an area identified as hydrologically
significant-
2.15 The existing topography of this location does present some challenges to providing a
flat area suitable for the construction of the new facility and associated internal
roadways and parking lots and further site investigation would be needed. Prior to
construction, geo-technical work would need to be completed.
2.16 As this property would need to be purchased, Planning and Development staff sought
information on the current open market value of a 25-acre parcel of land, in this area.
Based on the assessment received, the current price for the property identified would be
in the range of $175 - $225,000 per acre, or $4.4 - $5.6M.
2.17 As the site servicing plans for this Secondary Plan have yet to be submitted, Durham
Region is not able to provide any specific details on future servicing within the study
area at this time. A preliminary review indicates a possible sanitary sewer connection at
the north end of the subdivision immediately south of Concession Road #3 near Liberty
Street. Detailed capacity calculations for the new facility would be required to confirm
this. Otherwise a connection could be required to an existing sewer on Mearns Avenue,
south of Concession Road #3. Enbridge Gas has confirmed existing natural gas service
is close to this location, however, detailed calculations on anticipated demand would be
required to determine if the existing line pressure would be adequate.
2.18 This site would be able to accommodate both proposed phases of this new facility,
however, the total project budget would have to be increased to accommodate for the
cost of land acquisition and the provision of water, sewer and natural gas services to the
property. Until the Secondary Plan site servicing plan is finalized, our Public Works staff
are unable to provide a cost estimate for servicing.
Future Community Park Location a Lambs Road and Concession Street
2.19 The second future Community Park identified in the OP is the property located at the
north east corner of Lambs Road and Concession Street. This property falls within the
Soper Hills Secondary Plan area, and is also currently in progress, with an anticipated
completion in Summer/Fall 2022.
Municipality of Clarington Page 9
Report CSD-003-21
2.20 The Terms of Reference for this Secondary Plan summarize the area as follows, [The
site is a farm field with scattered farm houses, barns and treed areas. The site gradient
is undulating, with drops toward the ditches at the northwest and southeast portion. This
neighbourhood is almost completely farmed today.:]
2.21 This property has a consistent slope from east to west and does not appear to present
any major topography problems for situating a facility and associated internal roadways
and parking lots. Prior to construction, geo-technical work would need to be completed.
2.22 This property would also have to be acquired to locate the proposed recreation facility.
Planning and Development staff have confirmed this property would have a similar
current open market value of $175 - $225,000 per acre. While the Municipality has an
agreement with the property owners for the future purchase of this site it is at fair market
value. Assuming the same 25-acre parcel of land, the current price for the parcel would
also be in the range of $4.4 - $5.6M.
2.23 Durham Region Works Department advised us there is no servicing close to this parcel
of land at this time. However, sewer servicing in the area will be extended closer to the
property with the development to the south. Work is currently underway to confirm how
much area within the Soper Hills Secondary Plan can be serviced by the Timber Trails
development. Any excess demand would need to be delayed until the construction of a
new trunk sanitary sewer. The water feeder main will be extended to the north east
corner of Lambs Road and Concession Street, as part of a Durham Region project that
is currently in design. Enbridge Gas has confirmed existing natural gas service is close
to this location, with adequate pressure to satisfy the demand.
3. Indoor Recreation Facilities Development Strategy F
Summary of Facility Expansion Plans
3.1 In addition to the major facility expansion that has been identified for South
Bowmanville, the 2017 Strategy included other facility expansion projects at existing
facilities in Courtice and Newcastle. The initial proposed timelines have been provided
(see Attachment 3). 7 EHAM-MiLS(EDLV-DLWA/LP P D1Jll__HGff1AR❑-FLG/-1
information.
3.2 The background information that formed the basis of the recommendations in the
Strategy has not been fully updated and some facility components may need to be
reconsidered. For instance, in recent years Council has approved annual funding for the
creation of dedicated youth centre space, through our partnership with the John Howard
Society, at South Courtice Arena and Diane Hamre Recreation Complex. Also, the
pandemic has had a drastic impact on the fitness industry and, as a result, we may
need to re-evaluate what types of fitness/wellness facilities and services will be needed
by our residents in the future.
Municipality of Clarington
Report CSD-003-21
Page 10
3.3 The project budget information has also not been recently reviewed or updated and
estimates 2016 values for the base cost. From this base cost, an annual inflation rate of
3.5% was added to better estimate the project costs for the proposed project year. Prior
to bringing forward specific recommendations for Council approval on any of these
expansion plans, a more detailed facility plan and project budget would be completed.
3.4 The project timing has also not been updated and was originally based on the South
Bowmanville project moving forward in 2018. Staff will need to review and update the
expansion plan prior to bringing forward further recommendations for approval.
Diane Hamre Recreation Complex
Phase I:
Fitness/Wellness Centre
Youth and Older Adult Space
Design Early 2022
Project Budget - $10,400,000
Phase II:
Twin Pad Arena
Indoor Walking Track
Design Early 2026 (subject to results of an arena needs assessment in Mid 2023)
Project Budget - $41,300,000
Courtice Community Complex
New Teaching Pool
Design Early 2024
Project Budget - $10,000,000
South Courtice Arena
Gymnasium Expansion
Design — Early 2027
Project Budget - $8,500,000 (2016)
3.5 The two future Community Park locations were briefly mentioned in the 2017 Strategy,
but were not given consideration for specific future facilities, as it was estimated the
need to build on these sites was outside the 2017 L 2031 planning period.
4. Project Methodology
4.1 This report will attempt to provide Council with a basic overview of project methodology
options that could be considered to move forward with the approval of the new
recreation facility. The information provided is not an exhaustive list of the specifics of
each option, nor a full list of advantages and disadvantages of each.
Municipality of Clarington Page 11
Report CSD-003-21
Design ❑ Bid - Build
4.2 This is the traditional methodology the Municipality has used for new building
construction and major renovations projects in the past. For this reason, municipal staff
are the most comfortable with this process. Through public procurement, the
Municipality would contract an architectural/ engineering project team who, acting on
behalf of the owner, would prepare design drawings and project specifications for
tendering.
4.3 Prior to finalizing the tender documents, the Municipality would issue a request for pre -
qualification for general contractors. This will ensure only general contractors with
experience in building similar types and sizes of facilities are eligible to bid on the
project.
4.4 Following Council approval of the successful construction bid, the stipulated cost of
construction is set, and the Municipality would execute a contract with the successful
General Contractor (CCDC 2). Although the stipulated price for construction remains
fixed, there will be exceptions where changes are necessary. This could be the result of
unforeseen site conditions, errors and omissions, or a lack of clarity in the tender
documents. Additionally, the Municipality may request changes to the project. When
these occur, the Contractor submits a quotation for the contemplated change and is
reviewed, accepted, declined, or further negotiated until all parties agree. All approved
changes would be funded through a project contingency, which would be included in the
overall approved project budget.
4.5 A project of this size will undoubtedly require changes to the contract price over the
course of the construction period and staff will identify an adequate value for
contingency. For this new facility staff will be retaining an independent project
management team that, in collaboration with the design team and the Municipality, will
prepare thorough project drawings, specifications and other tender documents in order
to help mitigate instances of errors and omissions.
Design []Build
4.6 This methodology requires the Municipality to issue a detailed Scope of Work to general
contractors who will provide a bid for both the design and construction for the project.
As part of their project team, a general contractor will engage a design/engineering
team to work with them to prepare design documents for the contractor to complete the
construction.
4.7 The Scope of Work represents the owner's essential project requirements and
expectations and is intended to provide adequate information upon which Contractors
can prepare technical and price proposals. The scope should clearly define our needs
and expectations in a final product, without rigidly controlling the means and methods to
be used to meet those needs and expectations. Where applicable, the scope will also
identify commonly accepted standards, codes, and specifications.
Municipality of Clarington
Report CSD-003-21
Page 12
4.8 In a Design -Build project, the Municipality would have no direct relationship with the
architects and engineers involved in the design of the facility, as they are retained by
and responsible to the Contractor. In addition to putting the Municipality at a
disadvantage, the normal checks and balances between design and construction may
not exist.
4.9 If we are to consider this as an option, the Municipality would need to retain the services
of an architectural and engineering team to prepare the Scope of Work that would be
issued with the tender. They would also assist in the prequalification of design -build
firms to ensure adequate prior experience with designing and constructing similar
projects. Staff would also recommend retaining this team to represent the Municipality
throughout the duration of the design and construction stages. The skills and knowledge
they would provide would EHIEH❑HEECDEGVVI-i7❑R CaEH VREDG'YRFDNER-FEH❑DTU
of the Municipality.
4.10 Following Council approval of the construction tender, the stipulated cost of the design -
build is set, and the Municipality would execute a contract with the successful
Contractor (CCDC 14). Although a benefit of this methodology is the fixed price, any
necessary changes, at the request of the Municipality, during the design and/or
construction can be costly. As the contractor is bound by their approved price for the
project, changes to performance requirements and standards, if not clearly articulated in
the Scope of Work, could result in design change or material substitutions that may
negatively affect the end product.
Public -Private Partnership (P3)
4.11 As originally reported in FSD-006-21, staff considered the feasibility of pursuing a P3 for
the new recreation facility for South Bowmanville. This included arranging for a
presentation from P3 Advisors Inc., an industry leader in providing strategic advice for
clients who are considering the P3 model for their projects. Additionally, the President of
the Canadian Council for Public- Private Partnerships was contacted to provide some
background information.
4.12 Although there are numerous examples of P3 projects in Ontario, no similar municipal
projects have been discovered. Most projects are in the transportation, education, and
healthcare sectors. Other examples include large spectator arena venues (5,000 seats
plus) housing OHL and ECHL hockey clubs. The absence of municipal community
centre examples indicates to staff, that the operating model for this type of facility is not
attractive to private sector investment.
4.13 However, should Council wish to consider proceeding with the P3 model, specific
direction on the facility plan and location would be needed to proceed prior to releasing
an Expression of Interest. Should there be interest from the private sector, staff will
report on the results as provided estimated costs for the professional services needed
to go forward.
Municipality of Clarington
Report CSD-003-21
5. Other Considerations
Aging Arena Infrastructure
Page 13
5.1 Currently the municipally operated Darlington Sports Centre and the Board operated
Orono Arena and Community Centre and Newcastle Memorial Arena have been in
operation between 40 ❑45 years. In 2010, the Municipality completed a $2.2M upgrade
to the Darlington Sports Centre. The work included the replacement of the refrigerated
arena floor, rink board system, refrigeration equipment as well as an interior lobby
expansion and accessibility improvements. The objective of this upgrade was to extend
the useful life of the facility by 15 years or to 2025, at a minimum. Based on the current
condition of the building, staff are confident the facility will remain fully operational
beyond 2025.
5.2 In August 2020, Community Services retained an independent arena engineering firm to
provide an assessment of the ice rink and refrigeration systems for the Orono Arena
and Community Centre and the Newcastle Memorial Arena. The scope of their work
included an assessment of the refrigeration plant equipment, the refrigerated arena
floors/associated piping and the rink board/glass systems. In September we received a
report for each facility that was shared with each Arena Board Chair.
5.3 The major findings in both reports included the recommendation to replace the
ammonia chillers in both arenas. As failure of this equipment could present a hazard to
both staff and the public, this work was approved in our 2021 capital budget and is
scheduled for completion this summer. The reports also concluded, that based on the
age of both refrigerated arena floors, a failure of the imbedded brine piping system
could occur at any time. It was recommended that replacement of both floors and the
associated refrigeration systems be planned for in the near term.
5.4 To provide some context, both arena floors are original and have been in service for
over 40 years. By comparison the floor at Darlington Sports Centre was replaced after
35 years and Pad A at the Garnet Rickard Complex was replaced after 30 years. With a
median useful life of 25 30 years for arena floors, both have far exceeded their useful
life. A major floor failure at the start of or during an ice season could result in a loss of
that ice season, with significant impact to rental revenues.
5.5 Staff will be working with the two Arena Boards in the coming months to discuss the
details of the repairs needed and will report back to Council this fall seeking funding
approval for the necessary renovations. The objective of these renovations would be to
extend the useful life of both arenas by a minimum of 10 years.
Municipality of Clarington
Report CSD-003-21
Page 14
5.6 Based on the existing (pre COVID-19) demand in Clarington for ice time, the
construction of two new ice pads in Bowmanville will serve this current pent up demand
(estimated at one ice pad) and allow for expansion related to residential growth in the
near term. This will require the two Board operated arenas, as well as the Darlington
Sports Centre, to effectively operate until the new ice pads planned for Diane Hamre
are constructed and operational. Based on the 2017 Facilities Development Strategy
this was identified for the late medium term of the plan with design to commence in
2026.
Performing Arts/Major Events Centre
5.7 There has been discussion regarding the need for a performing arts and/or a major
events venue for Clarington. Currently our large events are held at the Garnet B.
Rickard Recreation Complex. The main arena has seating for approximately 1,200 and
is also the home to our Junior hockey and lacrosse teams.
5.8 With the construction of two new ice pads in Clarington, staff are confident there would
be some flexibility in the annual scheduling for Pad A at the Garnet Rickard Complex
that could accommodate additional large spectator events.
5.9 There was some very preliminary discussions, pre COVID-19, on providing large indoor
space for performing arts. At this time there does not appear to be an immediate need
for such a facility in Clarington and it may warrant further consideration in the future.
6. Concurrence
6.1 This report has been reviewed by the Director of Financial Services who concurs with
the recommendations.
7. Conclusion
7.1 It is respectfully recommended that Council approve the recommendations, identified in
this report as Option 1. This facility plan, as outlined in Report CSD-009-19, would
include the design and construction of a twin pad arena, gymnasium,
program/community space, administrative offices and a CPL branch library and would
be located at the South Bowmanville location. The total project budget of $50,000,000 is
to be funded through the issue of debt financing by the Region of Durham, as outlined in
Report FND-031-20.
7.2 Should Council wish to reconsider the facility plan, the location, the budget and
financing or the project methodology, we are asking that this report be referred back to
staff for further investigation. Subsequently, staff would report back to Council in the Fall
of 2021.
Municipality of Clarington Page 15
Report CSD-003-21
7.3 Since the early 200019, supported by Development Charges funds, the Municipality has
focussed on major indoor and outdoor recreation development in each of our major
urban areas along the lakeshore. It commenced with the acquisition of land on
Prestonvale Road in Courtice for the South Courtice Community Park, continued with
the South Bowmanville Community Park on Baseline Road and finally the Newcastle
Community Park on Rudell Road. Although an overall indoor facility plan was developed
for each location, to date, we have yet to fully build out on any of these sites. In addition
to providing the community a wide variety of indoor recreation and leisure activities
LL G4JR_HJU;R AWI-LIHDIIHDmR W -U FD_W;SHLDb J LH I IFLHuFIr tWat can be realized that
would effectively minimize the impact to annual operating budgets.
7.4 As was indicated in this report, much of the background work for the 2017 Indoor
Facilities Development Strategy was completed in 2016. It is important for this
information to remain current D_G-[F;MULLIJI&R:1CFLCVC&HMR❑[R❑Vub new Bowmanville
facility, staff will undertake an internal review of the background information and the
assumptions that drove the original recommendations.
7.5 We look forward to a decision on this new recreation facility that will provide quality
indoor facilities and programs, not only to the residents of Bowmanville, but to all of
Clarington.
Staff Contact: George Acorn, Director of Community Services, 905-623-3379 ext. 2502 or
gacorn@clarington.net.
Attachments:
Attachment 1 -1 Memo to Council October 28, 2019
Attachment 2 -1 Map of Land Use F1 Bowmanville Urban Area - Including Community Park
Locations
Attachment 3 -1 Proposed Facility Development Schedule from Indoor Facilities Development
Strategy
Interested Parties:
There are no interested parties to be notified of Council's decision.
. Attachment 1 to Report CSD-003-21
c1tv iWamp Memo
If this information is required in an alternate format, please contact the Accessibility
Co-ordinator at 905-623-3379 ext. 2131
To: Mayor Foster and Members of Council
Andy Allison, CAO
From: George Acorn, Acting Director of Community Services
Date: October 18, 2019
Subject: South Bowmanville Recreation Centre F Items #4, #5 General Government
Committee Meeting Minutes October 15, 2019
File:
At this General Government Committee meeting the recommendations from staff report
CSD-009-19, as outlined in Resolution #GG-458-19, were amended to add:
That Staff report back to the October 28, 2019 Council meeting on the cost of adding a
wellness/fitness component, amongst other items, in place of the office space of 5,600
Following discussion with the consulting team staff have prepared a revised facility
program, as requested, IR5&R -1FL0I1FRL1C1LG-1FUF . This work was limited to a
recalculation of the square footage of the facility and the associated impact on the
overall project budget. The preliminary concept plan from the report has not been
updated to reflect the proposed changes.
Facilitv Sauare Footaae Adiustment:
Original Gross Floor Area
148,281 square feet
Delete Office Space
( 7,000)
Add Wellness/Fitness
10,250
Add Fitness Change Rooms
2,863
Revised Gross Floor Area
154,394 square feet
The revised plan would increase the gross floor area of the facility by 6,113 square feet.
This reflects in a revised project budget increase of $3,403,770. It is important to note
the cost per square foot of the fitness area and change rooms is more expensive than
the deleted administration and office spaces. You will also see the revised budget
includes the provision of fitness equipment.
Page 11
The Corporation of the Municipality of Clarington
40 Temperance Street, Bowmanville ON L1 C 3A6 1 905-623-3379
Attachment 1 to Report CSD-003-21
CIVIIII c1tv
Memo
Revised Project Bu get:
Original Construction Budget
Delete Office Space
Add Wellness/Fitness
Add Change Rooms
Revised Construction Budget
Design/Engineering/Project Mgmnt
Furnishings & Equipment
Add Fitness Equipment
Revised Project Budget
$42,100,000
( 2,069,600)
includes 25% gross -up
3,652,500
includes 25% gross -up
1,047,800
includes 25% gross -up
$44,730,700
4,473,070
10% of construction budget
1,705,300
500,000
$51,409,070
Project Cost Per Square Foot (average):
Original Facility Program $48,005,300/148,281 sq. ft. _ $323.75/sq. ft.
Revised Facility Program $51,409,070/154,394 sq. ft. _ $332.97/sq. ft.
The revised facility program budget, as requested, reflects the deletion of 5,600 square
feet of office space which includes Community Services administration offices and
Clarington Tourism space. This space also includes the customer service area, facility
and program operations offices, staff kitchenette, staff meeting room and a staff
washroom. An allocation of space for some of these critical functions will need to be
included in any final design program.
Should Council approve the revised facility program to include wellness/fitness, the
following resolution, from the Council meeting of May 12, 2003, would need to be
rescinded:
Resolution # C-286-03
Moved by Councillor Schell, seconded by Councillor Rowe
WHEREAS the Municipality of Clarington recognizes that the fitness industry, as a local
small business, is at a disadvantage when directly competing with organizations that do
not pay the taxes that form a significant part of the small business owner's operating
expenses;
WHEREAS the Municipality of Clarington does not feel it is in the best interests of its
residents to compete with the fitness industry who are meeting the needs of the
community,
Page 12
The Corporation of the Municipality of Clarington
40 Temperance Street, Bowmanville ON L1 C 3A6 1 905-623-3379
. Attachment 1 to Report CSD-003-21
cUrIn c1twiRw
Memo
WHEREAS the Municipality of Clarington is committed to responding to opportunities for
business retention and attraction;
NOW THEREFORE BE IT RESOLVED
THAT the Municipality of Clarington hereby advises the local fitness facility owners that
it will not enter into direct competition with the local fitness industry in new facility
construction; and
THAT the Association of Municipalities of Ontario be advised of Council's decision, and
be requested to forward the resolution to the member municipalities for their
consideration.
CN�1:4:7/21#a
The project team remains confident with the original recommendations stated in Report
CSD-009-19 relating to a wellness/fitness centre and provide the following points from
1M-1-JLSR_Vffl:Z_A R❑J- qDM RIP D\5U[]
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.
4.8 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 in this facility 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 sector
to satisfy the needs of the community.
Staff are currently working on the Investing in Canada Infrastructure Program
application, with the deadline of November 12 approaching, and are confident we will
have a competitive submission for provincial and federal consideration. There is a
FM FJRI=-1-FR I❑FRP P ❑❑W lUW111D6SffDARE1D❑C[tourism has been specifically
referenced as an integral partner to enhance service delivery for residents and would be
a positive component of our funding application.
I trust this information will be of assistance to you as you consider this item on October
28.
Page 13
The Corporation of the Municipality of Clarington
40 Temperance Street, Bowmanville ON L1 C 3A6 1 905-623-3379
Attachment 1 to Report CSD-003-21
c1tw1w9win
Memo
Regards,
George Acorn
Acting Director of Community Services
Page 14
The Corporation of the Municipality of Clarington
40 Temperance Street, Bowmanville ON L1 C 3A6 1 905-623-3379
Municipality of Clarington
Indoor Recreation Facilities Development Strategy
Section 5. Implementation of Expansion & Redevelopment Options
Assessments contained in Section 4 have resulted in a number of recommendations, of which
Figure 6 illustrates the proposed facility development timeline. The details and costs of each
initiative are outlined in the pages that follow. The proposed timeline is contingent upon many
factors including the actual level of population growth realized over the next fifteen years in
relation to the forecasts used as the basis for this Strategy, participation levels and recreational
preferences in the future, the financial capacity of the Municipality to undertake such works,
competing priorities and pressures for other municipal services, life expectancy of existing
facilities, etc.
Figure 6: Proposed Facility Development Schedule
Short -Term
Design - Bowmanville Indoor
Soccer Phase 1 Expansion
Twin Pad Arena*
Gymnasium
Fitness / Wellness Centre
Indoor Walking Track
Youth & Older Adult Space
Administration Offices
0
Medium -Term
Design - Newcastle &
District Recreation Complex
Phase 1 Expansion
Fitness / Wellness Centre
Youth & Older Adult Space
0
2017 2019 2021
_ �JWI
2018 2020
Long -Term
Design — Courtice Community
Complex Expansion
New Teaching Pool
Design - Newcastle & District
Recreation Complex Phase 2
Expansion
Twin Pad Arena**
Indoor Walking Track
2023 2025 2027 2029 2031
=i 1 11 •=• • • •
2022 2024 2026 2028 2030
0
Design - Bowmanville Indoor
Soccer Phase 2 Expansion:
to Indoor Aquatic Centre
Design - South Courtice Arena Expansion:
Gymnasium
* A twin pad arena in Bowmanville is recommended based on the estimated hours being contracted by
minor sport users in surrounding municipalities, expansion of adult hockey opportunities as well as the
expansion of recreational programs and services provided by the Municipality. Construction would
commence after the Municipality confirms sufficient ice -related demand exists based on market
conditions at that future time.
** A twin pad arena is recommended in Newcastle subject to the results of an arena needs assessment in
2023.
Monteith Brown Planning Consultants with TRA & MJMA I Page 52