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Staff Report
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Report To: Special General Government Committee
Date of Meeting: September 16, 2024 Report Number: CAO-004-24
Authored by: Justin MacLean, Director, Strategic Initiatives
Reviewed By: Mary-Anne Dempster, CAO
By-law Number: Resolution Number:
File Number:
Report Subject: Draft Parks, Recreation and Culture Master Plan and Financial Analysis
Recommendation:
1. That Report CAO-004-24, and any related delegations or communication items, be
received;
2. That Staff be directed to receive, and consider, comments from the public and
Council regarding the draft Parks, Recreation and Culture Master Plan and prepare
a subsequent recommendation report for the meeting of October 28, 2024; and
3. That all interested parties listed in Report CAO-004-24, and any delegations, be
advised of Council’s decision.
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Report Overview
The purpose of this report is to share the draft Parks, Recreation and Culture Master Plan
(Attachment 1) with Council and the community. This will initiate the final period of public
engagement on this cross-functional project, to confirm support of the Master Plan by
Council, the public, and key stakeholders.
1. Background
1.1 Public spaces connect people to their community. As Clarington grows, recreational and
leisure needs are changing and diversifying. That’s why, as directed by Council in April
2023 in Report PDS-26-23, the Municipality of Clarington is creating a Parks,
Recreation, and Culture Master Plan (PRCMP): to understand and plan for services and
facilities to meet the community’s needs now and in the future.
1.2 The Master Plan maps out Clarington’s current resources and assets, creates a vision
and makes recommendations for future spaces and services that are fiscally and
environmentally sustainable while suiting the unique needs of the community for the
next 10 to 15 years.
1.3 Monteith Brown Planning Consultants was retained in July 2023 to develop the PRCMP.
Guided by a Terms of Reference prepared by the Municipality, development of the
Master Plan was divided into five phases. Phase 1 consisted of background review,
data collection, and preliminary analysis, as well as an inventory of facilities, programs,
and services. Phase 2 focused on community engagement with residents, stakeholders,
staff, and Council through a variety of engagement tactics; as shared with Council in
Report PDS-011-2024. A draft master plan was closely reviewed by staff in Phase 3,
inclusive of recommendations for parks, recreation, and culture facilities, and delivering
services, and recommendations.
1.4 Currently, the project is at Stage 4: sharing the draft master plan with Council and the
public for final review and comment. Following presentation to Council, a public
engagement period will open for approximately three weeks. Following this, input will be
considered and incorporated into the final Master Plan, which will be delivered for
Council’s approval at the October 28, 2024 Council meeting.
2 Parks, Recreation and Culture Master Plan
Master Plan Development and Recommendations
2.1 Clarington’s Parks, Recreation and Culture Master Plan was developed through
extensive community engagement, staff and Council consultation (workshops, advisory
committees, board meetings and interviews) and data collection, review and analysis.
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2.2 Comparisons with other municipalities have been considered, although it is important to
recognize that provision models differ in other communities due to the local context. For
example, Clarington’s large geographic land base and growth patterns (which are
focused in three urban areas) are different from more concentrated municipalities.
Clarington’s large geographic area also requires the need to provide a higher level of
service compared to other municipalities to ensure that the distribution and availability of
facilities is equitable and is positioned to serve growth.
2.3 The proposed Master Plan includes 111 recommendations in the areas of Parks,
Facilities, Culture, Service Delivery and Implementation.
Parks
2.4 The PRCMP includes a Parks Plan, which provides the Municipality with direction on
planning, acquiring, developing, and designing parks, as well as guidance on enhancing
Clarington’s recreational trail system based on available park data, existing approaches
and best practices in other municipalities, provincial legislation, and other key inputs.
This section satisfies the Municipality’s requirement for a Parks Plan under Section 42
of the Planning Act that examines the need for parks.
Facilities
2.5 The Facilities Plan section of the proposed Master Plan provides the Municipality and
Clarington Library, Museum and Archives (CLMA) with guidance on enhancing existing
and developing new community facilities for recreation, culture, libraries, museums and
archives to address service gaps, respond to evolving interests, or to address growing
community needs.
2.6 The Master Plan analyzes facility needs over the planning period and recommendations
are identified at the end of each sub-section. Recommendations are not based upon
one specific factor, but consider several factors, including background documents and
plans, population and demographic characteristics, trends and best practices, inventory
and distribution, facility utilization and program data, and service level targets.
2.7 The Master Plan compares our current state of service delivery targets in facilities
compared to ideal service levels and requirements in the future to accommodate
population growth.
Culture
2.8 The proposed Master Plan provides guidance on elevating culture in Clarington and
celebrating local arts, diversity, events, and people.
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2.9 Both The Municipality of Clarington and CLMA deliver valued cultural services and
programming, including special events and festivals, public art, community building,
place-making and more. The Master Plan includes analysis of Clarington’s strengths in
these areas and recommendations for strategic improvements to foster culture. It also
places priority on supporting and engaging Indigenous Peoples by working
collaboratively to develop strategies and programs to ensure the Municipality’s parks,
recreation and culture program supports reconciliation.
Delivery of Services
2.10 The proposed Master Plan provides the Municipality a nd CLMA with guidance on
delivering services to meet the needs of current and future residents.
Recommendations are based on community input, as well as research and best
practices in other municipalities to provide the Municipality and CLMA with key
directions to strengthen internal capacity, improve service delivery, engage
underrepresented populations, and make evidence -based decisions.
Implementation Strategy
2.11 An implementation summary is contained in the proposed Parks, Recreation and
Culture Master Plan. By approving this Master Plan, the Municipality of Clarington and
CLMA are not bound to implementing every recommendation and providing the facilities
in the order, amount, or timing indicated; rather the Master Plan provides the
Municipality and CLMA with guidance on community priorities and sets a general course
of action to meet needs as they are presently defined.
2.12 For each recommendation, resource implications have been identified, particularly if
there is a capital cost required for facility development or further study, if additional
staffing will be required for operations, management, and service delivery, or if staff time
is required. The current draft includes high-level preliminary analysis of staffing levels
required for new amenities. These assumptions will be confirmed when the final report
is submitted.
2.13 The timing of the recommendations proposed in the Master Plan recognizes the need
for phased implementation, partnerships, and/or outside funding sources, as some
recommendations are based upon what is needed and not necessarily what may be
financially achievable at the present time. The timing of initiatives is organized into
short, medium and long-term deliverables.
2.14 The Master Plan identifies the need to be reviewed regularly to identify areas where the
availability of resources may affect the timing of implementation. Analysis of
implementation options and capital/operating budget implications should be undertaken
prior to approving major projects, as well as various funding sources and partnership
opportunities. Many of the recommendations will need to be implemented through the
Clarington Official Plan, as part of the upcoming review process.
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3 Financial Considerations
3.1 With the completion of the Master Plan, the Municipality of Clarington will have the
information required to:
Undertake a new Development Charge Background Study to embrace the identified
growth-related capital needs related to parkland development, recreation, and
library services;
Update the Parkland Dedication By-law to maximize the amount of parkland
conveyance and/or payment-in-lieu funds from future growth that is allowable under
the Planning Act;
Consider capital needs in excess of the parkland provisions of the Planning Act,
and Development Charges Act provisions, through a Community Benefits Charge
Strategy;
Consider when an update to the user fees by-law(s) should be undertaken to
embrace updated fees for new facilities, services, and/or programs identified in the
Master Plan;
Consider applying for funding through grant programs that are/become available
related to these services; and
Consider the impacts of future financial needs to be funded through property taxes,
during future budgeting process.
3.2 The Master Plan requires financial investment in Clarington’s parks, recreation, culture,
and library system, and it outlines a series of priorities for new infrastructure to meet
growth-related needs, as well as to upgrade, modernize, or renew aging assets to better
respond to community expectations. Clarington has limited resources, and it cannot
afford to do everything that the community desires, underscoring the importance of
undertaking this Master Plan to prioritize needs and resources.
3.3 High-level capital cost estimates have been identified within the Master Plan for the
recommended new facility needs to meet current and future needs towards 2036 . Given
that these are high-level capital cost estimates, they will need to be reviewed and
confirmed prior to any facility construction, or as part of a future Master Plan update, as
there are many factors that influence actual costs, such as availability of materials and
labour, quality of fit and finishes, consulting fees, and other variables.
3.4 The preliminary capital cost estimates, in 2024 dollars, of approximately $385 million
were completed by Watson & Associates Economists Ltd. and have been attached to
this report (Attachment 2, page 22).
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3.5 The cost estimates include $159.4 million for parkland acquisition and $13.9 million for
parkland development. Approximately $184 million relates to the capital infrastructure
needs identified in the plan, including indoor facilities, such as arenas, aquatics, library,
and community spaces, and outdoor recreation, such as sports fields and playgrounds.
The cost estimate also includes approximately $27.5 million in studies and additional
amenities (e.g. trail development).
4 Strategic Plan
4.1 The PRCMP is a key part of Clarington’s 2024-27 Strategic Plan, listed under priority
G.2.3: Develop and complete Parks, Recreation, and Culture Master Plan and Prioritize
action items for implementation.
5 Climate Change
5.1 The Parks, Recreation and Culture Master Plan recommends that Clarington design
new and redeveloped parks and facilities with a climate change lens; with regard for
guiding frameworks such as the Clarington Corporate Climate Action Plan to achieve
the Municipality’s goal of reducing greenhouse gas emissions by 35% by 2030 and net-
zero emissions by 2050.
6 Concurrence
6.1 This report has been reviewed by the Deputy CAO of Planning and Infrastructure,
Deputy CAO of Finance and Technology/Treasurer, and Deputy CAO of Public
Services, who concur with the recommendation.
7 Conclusion
7.1 It is respectfully recommended that staff be directed to proceed with Phase 4 of the
PRCMP: Draft Master Plan and Consultation, by sharing the draft Master Plan with
stakeholders and the public for a public engagement period of three weeks, and that
staff prepare a subsequent recommendation report for the Council meeting of October
28, 2024.
Staff Contact: Justin MacLean, Director, Strategic Initiatives, jmaclean@clarington.net
Attachments:
Attachment 1 – Draft Parks, Recreation and Culture Master Plan
Attachment 2 – Financial Analysis – Draft
Interested Parties:
List of Interested Parties available from Department.
Municipality of Clarington Parks, Recreation and Culture Master Plan (Draft)
Monteith Brown Planning Consultants I Tucker-Reid & Associates I Watson & Associates Economists Ltd. I 1
September 2024
DRAFT
Municipality of Clarington Parks, Recreation and Culture Master Plan (Draft)
Monteith Brown Planning Consultants I Tucker -Reid & Associates I Watson & Associates Economists Ltd. I i
Land Acknowledgment Statement
The Municipality of Clarington is situated within the
traditional and treaty territory of the Mississaugas and
Chippewas of the Anishinabeg, known today as the
Williams Treaties First Nations. Our work on these
lands acknowledges their resilience and their
longstanding contributions to the area now known as
the Municipality of Clarington.
Pearce Farm Park
Municipality of Clarington Parks, Recreation and Culture Master Plan (Draft)
Monteith Brown Planning Consultants I Tucker -Reid & Associates I Watson & Associates Economists Ltd. I i
Contents
1. Introduction ............................................................................................................... 1
1.1 Master Planning for Parks, Recreation and Culture ........................................... 1
1.2 Achievements and Ongoing Initiatives ................................................................ 2
1.3 Planning Process ................................................................................................. 3
1.4 Benefits of Parks, Recreation, and Culture ......................................................... 3
1.5 Clarington is Evolving .......................................................................................... 4
2. Community Engagement.......................................................................................... 7
2.1 Community Engagement Strategy ...................................................................... 7
2.2 What We Heard ................................................................................................... 8
3. Parks Plan ................................................................................................................. 11
3.1 Defining Parks ..................................................................................................... 11
3.2 Park Hierarchy .................................................................................................... 11
3.3 Park Facilities and Amenities ............................................................................ 13
3.4 Park Policies ...................................................................................................... 15
3.5 Park Service Levels and Future Needs ............................................................ 21
3.6 Park Design Strategies ...................................................................................... 35
3.7 Recreation Trails ................................................................................................ 41
3.8 Aligning with the Clarington Waterfront Strategy .............................................. 48
4. Facilities Plan .......................................................................................................... 50
4.1 Arenas ................................................................................................................ 53
4.2 Indoor Aquatics Centres .................................................................................... 59
4.3 Fitness Spaces .................................................................................................. 64
4.4 Indoor Walking Tracks ....................................................................................... 66
4.5 Gymnasiums ...................................................................................................... 67
4.6 Multi-Purpose Spaces and Community Halls ................................................... 70
4.7 Dedicated Youth and Older Adult Spaces ......................................................... 73
4.8 Squash Courts ................................................................................................... 76
4.9 Indoor Artificial Turf Fields ................................................................................. 78
4.10 Outdoor Rectangular Fields .............................................................................. 80
4.11 Ball Diamonds .................................................................................................... 87
4.12 Cricket Fields ..................................................................................................... 92
4.13 Outdoor Tennis Courts ....................................................................................... 93
4.14 Outdoor Pickleball Courts .................................................................................. 98
4.15 Basketball Courts ............................................................................................. 103
4.16 Outdoor Splash Pads and Outdoor Pools ....................................................... 107
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4.17 Skate Parks and Pump Tracks ......................................................................... 112
4.18 Leash-Free Dog Parks ..................................................................................... 116
4.19 Community Gardens ........................................................................................ 120
4.20 Outdoor Fitness Equipment ............................................................................. 124
4.21 Playgrounds ..................................................................................................... 125
4.22 Outdoor Skating Surfaces ............................................................................... 129
4.23 Outdoor Lacrosse Boxes ................................................................................. 130
4.24 Arts and Culture Facilities................................................................................ 132
4.25 Library Space ................................................................................................... 138
4.26 Museum and Archives Space .......................................................................... 146
5. Culture Plan ........................................................................................................... 148
5.1 Providing a Foundation for Culture ................................................................. 149
5.2 Cultural Diversity in Clarington ........................................................................ 150
5.3 Public Art .......................................................................................................... 150
5.4 Special Events and Festivals .......................................................................... 152
5.5 Supporting and Engaging Indigenous Peoples .............................................. 154
6. Delivering Services ............................................................................................... 157
6.1 Service Delivery Model .................................................................................... 157
6.2 Programs, Services and Resources................................................................ 159
6.3 Diversity, Equity, and Inclusivity ...................................................................... 171
6.4 Communication and Marketing........................................................................ 177
7. Implementation Strategy ...................................................................................... 178
7.1 Monitoring, Reviewing and Updating the Plan ................................................ 178
7.2 Partnership Development ................................................................................ 179
7.3 Financial Considerations ................................................................................. 180
7.4 Staffing Implications ......................................................................................... 184
7.5 Building Internal Capacity to Implement the Master Plan............................... 201
7.6 Implementation Strategy .................................................................................. 210
Appendix A: A Framework for Accepting Encumbered Lands ............................... 237
Appendix B: Parkland Dedication Scenarios Under the Planning Act .................. 239
Appendix C: Facility Service Level Benchmarking .................................................. 241
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List of Figures
Figure 1: Key Areas of Future Population Growth ............................................................. 6
Figure 2: Support for Additional Public Investment in Parks, Recreation and Culture
Facilities (n= 2,482 to 2,515) ........................................................................................ 10
Figure 3: Distribution of Existing and Future Parks ......................................................... 28
Figure 4: Distribution of Existing and Future Parkland, Courtice and Bowmanville ....... 29
Figure 5: Distribution of Existing and Future Parkland, Newcastle and Orono .............. 30
Figure 6: Preliminary Concept for Bowmanville Park on the former Zoo Lands (Draft
June 2024) ........................................................................................................................ 33
Figure 7: Conceptual Trail Network.................................................................................. 47
Figure 8: Key Factors in Analyzing Facility Needs .......................................................... 50
Figure 9: Prime Time Arena Utilization Rate, 2023/2024 Season................................... 55
Figure 10: Historical System-Wide Arena Utilization Rates during Prime Time ............. 55
Figure 11: Diane Hamre Recreation Complex Gymnasium Utilization ........................... 68
Figure 12: Historical Bowmanville Indoor Soccer Facility Utilization Rates during Prime
Time .................................................................................................................................. 79
Figure 13: Distribution of Rectangular Fields .................................................................. 86
Figure 14: Distribution of Ball Diamonds ......................................................................... 91
Figure 15: Distribution of Tennis Courts ........................................................................... 97
Figure 16: Distribution of Pickleball Courts .................................................................... 102
Figure 17: Distribution of Basketball Courts .................................................................. 106
Figure 18: Distribution of Splash Pads ........................................................................... 111
Figure 19: Distribution of Skate Parks ............................................................................ 115
Figure 20: Distribution of Leash-Free Dog Parks ........................................................... 119
Figure 21: Distribution of Community Gardens ............................................................. 123
Figure 22: Distribution of Playgrounds ........................................................................... 128
Figure 23: Distribution of Clarington Library, Museum & Archives Facilities ................ 139
List of Tables
Table 1: Municipality of Clarington Projected Population, 2021 to 2036 .......................... 4
Table 2: Recommended Park Hierarchy .......................................................................... 12
Table 3: Park Facility and Amenity Framework ............................................................... 14
Table 4: Park Supply......................................................................................................... 21
Table 5: Recommended Park Standards by Type ........................................................... 22
Table 6: Future Park Needs by Type Based on Recommended Service Standards
(hectares) .......................................................................................................................... 23
Table 7: Site Requirements for a Potential Sports Field Complex .................................. 27
Table 8: Site Selection Criteria for Acquiring a Future Sports Complex(es) ................... 27
Table 9: Future Facility Needs by Type Based on Needs Analysis ................................. 52
Table 10: Projected Ice Pad Needs, 2026 to 2036 .......................................................... 57
Table 11: Projected Indoor Aquatic Centre Needs, 2026 to 2036 ................................... 61
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Table 12: Projected Indoor Aquatic Centre Needs by Community, 2026 to 2036 .......... 61
Table 13: Projected Gymnasium Needs, 2026 to 2036 ................................................... 69
Table 14: Projected Outdoor Rectangular Fields Needs, 2026 to 2036 ......................... 82
Table 15: Projected Ball Diamond Needs, 2026 to 2036 ................................................ 88
Table 16: Projected Tennis Court Needs by Community ................................................. 95
Table 17: Projected Pickleball Court Needs by Community, 2026 to 2031 .................... 99
Table 18: Projected Basketball Court Needs by Community, 2026 to 2031 ................. 104
Table 19: Projected Splash Pad Needs, 2026 to 2036.................................................. 108
Table 20: Service Level Comparison, Library Square Feet Per Person ....................... 138
Table 21: Projected Library Space Needs ..................................................................... 140
Table 22: Projected Library Space Needs by Community ............................................. 141
Table 23: Municipality's Role in Special Events and Festivals ...................................... 152
Table 24: Registered Community Services Programming, 2022 .................................. 160
Table 25: Drop-in Community Services Programming, 2022 ........................................ 160
Table 26: Canada's 24-Hour Movement Guidelines ...................................................... 163
Table 27: Participation in Library Programs by Type ..................................................... 165
Table 28: Library Materials and Resources ................................................................... 167
Table 29: Estimated Population of Select Population Groups ...................................... 171
Table 30: Preliminary Capital Cost Estimates for New Facility Needs .......................... 182
Table 31: Parks Operations Staffing Impacts of the Master Plan Recommendations .. 188
Table 32: Summary of Changes to Parks Operations Staff Complement .................... 191
Table 33: Community Services Staffing Impacts of the Master Plan Recommendations
........................................................................................................................................ 193
Table 34: Summary of Changes to Community Services Staff Complement ............... 196
Table 35: Summary of Arts and Culture Staff Increases ............................................... 197
Table 36: CLMA Staffing Impacts of the Master Plan Recommendations .................... 199
Table 37: Summary of Changes to CLMA Staff Complement ....................................... 200
Table 38: Performance Measures and Targets to Consider .......................................... 203
Table 39: Organizational Design Principles ................................................................... 206
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1. Introduction
1.1 Master Planning for Parks, Recreation and Culture
The Municipality of Clarington is located in Durham
Region and offers a blended urban and rural lifestyle
that includes four settlement areas – Bowmanville,
Courtice, Newcastle and Orono – and 13 hamlets.
Clarington is recognized for its abundance of natural
features, including picturesque views of the Oak
Ridges Moraine and Lake Ontario. These are
complemented by a diverse and connected parks
system as well as, recreation and cultural facilities,
programs, and services provided by the Municipality
and various organizations.
Public parks, recreation, and culture services are an
important part of community success and wellbeing.
They contribute to community building, sense of
place, and quality of life through significant social,
economic, and environmental benefits by providing
spaces for services and programs for residents and
visitors to gather and participate in meaningful
activities. Universal access to parks, recreation , and
culture opportunities that address diverse needs and
offer affordable, high-quality opportunities is vital to
individual and community health and pro sperity. The
Municipality recognizes the importance of these
benefits and is taking a proactive approach through
this Parks, Recreation and Culture Master Plan that
considers past studies and achievements, and charts
a course forward to guide priorities and future
investment towards 2036 for:
• Indoor recreation facilities such as arenas,
pools and gymnasiums;
• Outdoor recreation facilities such as sports
fields, playgrounds and splash pads;
• Parks and open spaces;
• Cultural facilities and libraries; and
• Programs and service delivery.
Diane Hamre Recreation Complex
Bond Head Parkette
Bowmanville Library
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1.2 Achievements and Ongoing Initiatives
Clarington takes pride in its parks, recreation, and culture system. In recent years, the
Municipality has made significant strides in strengthening its parks, recreation, and
culture opportunities, through the work of staff across key departments, including
Planning and Infrastructure and Public Services, as well as the Clarington Library,
Museums and Archives (CLMA). Recent accomplishments and ongoing initiatives
include (not a complete list):
Recreation
• Clarington’s first cricket pitch was opened at Courtice Memorial Park.
• Outdoor refrigerated skating rinks are currently being designed in Bowmanville
and Newcastle, and the location in Courtice is currently under construction.
• Moving forward with the planning and design of Phase 1 to the South
Bowmanville Recreation Centre.
• Installed environmentally friendly solar lighting at the Courtice off-leash dog park.
• Steady increase in community services and programs following Public Health
and Provincial restrictions related to the COVID-19 pandemic.
Parks
• Implemented a new Parkland Dedication By-law.
• Completed construction of the Toyota Trail in Bowmanville and the Lion’s Trail in
Newcastle.
• Commenced planning of Bowmanville Community Park (formerly known as the
Bowmanville Zoo) in partnership with Valleys 2000 for the redevelopment of the
property.
• Working with the Jury Lands Foundation on the future of the Camp 30 Cafeteria
Building.
• Completed construction of several new parks such as Douglas Kemp Parkette,
Bruce Cameron Park, Northglen Park, and Newcastle Community Park.
• Completed conversion of the tennis courts at Stuart Park to four pickleball courts,
one of which is an accessible court.
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Culture and Library
• Introduced an accessible reading collection, including decodable books for
readers with dyslexia and readers in the early stages of literacy.
• Launched Clarington’s first multilingual collection.
• Improved convenience of accessing literacy materials by removing fines for
overdue materials and offering automatic renewals.
• Expanded the Library of Things to include sports equipment, light therapy lamps,
and home theatre equipment.
• Undertook accessibility retrofits at the Bowmanville and Orono Library Branch.
• Opened Clarington’s first makerspace at the Courtice Library Branch.
1.3 Planning Process
Guided by a Terms of Reference prepared by the Municipality, development of the
Master Plan was divided into five phases. Phase 1 consisted of background review,
data collection, and preliminary analysis, as well as an inventory of facilities, programs ,
and services. Phase 2 focused on community engagement with residents, stakeholders,
staff, and Council through a variety of engagement tactics. A draft master plan was
developed in Phase 3 to recommendations for parks, recreation, and culture facilities,
and delivering services, and recommendations, which will be tested with the public in
Phase 4. The final Master Plan will be delivered for Council’s approval in Phase 5.
1.4 Benefits of Parks, Recreation, and Culture
The strength of parks, recreation, and cultural services is crucial to the community’s
success and wellbeing. They contribute in a significant way to Clarington’s social,
economic, and environmental priorities by providing spaces for services and programs
that benefit residents and support community building. Universal access to parks,
recreation, and culture opportunities that address diverse needs and offer affordable,
high-quality opportunities is vital to individual and community health and prosperity.
Clarington recognizes these benefits and advances them through this Master Plan and
its implementation. In short, parks, recreation, and cultural opportunities can:
• Enhance mental and physical wellbeing;
• Enhance social wellbeing and promote engagement and inclusion;
• Help build strong families and communities;
• Help people connect with nature;
• Help people develop critical and creative thinking skills; and
• Provide wide-ranging economic benefits such as tourism.
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1.5 Clarington is Evolving
Understanding who lives in Clarington now and who may be living here towards 2036 is
important to ensure that the Municipality’s parks, recreation, and cultural opportunities
respond to the evolving community profile. Based on a review of key demographic
documents and existing studies, including the Statistics Canada Census, Region of
Durham Official Plan (adopted by the Region but awaiting approval from the Province of
Ontario), and other resources such as Let’s PLAN Clarington and Clarington Growth
Forecasts, notable demographic findings and assumptions are hig hlighted below.
• Clarington’s current 2024 population is 108,757 residents and it is anticipated
to reach 162,640 residents by 2036, representing a growth of 50%.1,2
Recognizing that the current population is an estimate of the Municipality, the
2026 Census population will provide Clarington with a renewed opportunity to
confirm population growth alignment with projections or if adjustments are
needed, which should be undertaken through a recommended five -year Master
Plan update.
• Bowmanville is expected to accommodate a large portion of population growth
during the planning period, followed by Courtice and Newcastle, particularly
through intensification of designated Urban Centres and Major Transit Station
Areas (MTSAs) such as Bowmanville GO and Courtice GO MTSAs (Table 1).
Population growth is also expected through secondary plan areas in greenfield
areas. Key areas of future population growth are illustrated in Figure 1.
Table 1: Municipality of Clarington Projected Population, 2021 to 2036
2021 2026 2031 2036
Bowmanville 47,777 58,327 69,456 79,972
Courtice 27,924 31,984 36,421 40,286
Newcastle 10,360 13,074 16,813 20,417
Orono 2,105 2,235 2,416 2,556
Rural 17,104 18,109 18,873 19,399
Total 105,270 123,730 143,970 162,640
Source: Hemson Consulting, 2021. Growth forecasts modified by Municipality of Clarington to align with the
Region of Durham Envision Durham Adopted Official Plan. Population figures include undercount and may
not add precisely due to rounding.
1 Municipality of Clarington mid-2024 population.
2 Durham Region. 2023. Envision Durham Adopted Official Plan, As Amended.
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• The Municipality has signed a Housing Pledge to
demonstrate its commitment to increasing the housing
supply in Clarington, with 23,067 residential units
planned to be constructed by 2031,3 which far exceeds
the 13,000 residential units allocated to the Municipality
as part of the Province’s goal of building 1.5 million
homes.
• The Municipality’s median age in 2021 was 39.2 years,
which was marginally lower compared to Durham
Region (40.0 years) and Ontario (41.6 years). Between
2016 and 2021, the population of seniors (ages 70+)
and older adults (ages 55 to 69) increased by 30% and
18%, respectively, while the population of children (ages
0 to 9) grew by 14%. All other age groups increased
between 3% and 6%. Aging of the population is
expected to continue during the planning period.
• The 2021 Census reported that the median income of
Clarington households in 2020 was $112,000, which
was higher than both Durham Region ($107,000) and
Ontario ($91,000). Clarington also has a slightly lower
proportion of the population that are living below the low -
income measure, after-tax (LIM-AT) at 5% compared to
7% in Durham Region and 10% in Ontario.
• Clarington is becoming more culturally diverse. The
2021 Census reported that 15% of residents were
immigrants, which was an increase from 12% in the
2016 Census. Major countries of origin include Europe,
Asia, and the Americas. Continued cultural
diversification during the planning period is expected.
• Based on the Provincial rate, it is estimated that one-
quarter of Clarington’s residents (approximately 29,000
residents) are living with a disability, which is
anticipated to increase as the population ages.
3 Staff Report PDS-009-23
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Figure 1: Key Areas of Future Population Growth
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2. Community Engagement
2.1 Community Engagement Strategy
A Community Engagement Strategy was created to
guide consultation activities to collect input from
residents, stakeholders, Municipal and CLMA staff,
Council, and other representatives. This section
provides highlights from the engagement tactics that
were undertaken to collect input. Details can be found
in the Community Engagement Summary Report.
A project webpage was created on Clarington
Connected and the Master Plan was promoted
through a Council Briefing Note, radio interviews and
commercials (including Spotify advertisements),
media press release, posters and pop -up banners,
bookmark handouts, calendar event listings, digital
signage promotion, print advertisements, including in
the Clarington Connected newsletter that was mailed
to all residents in the Municipality, word of mouth, a
robust social media campaign, and more.
The following consultation activities were held.
Additional public consultation will be held once the
draft Master Plan is available for public review and
feedback.
• Public Open Houses (4 in-person and 1 online,
with approximately 200 direct engagements with individuals)
• Community Survey (3,203 survey submissions)
• Stakeholder Focus Groups (10 sessions, 31 groups)
• Advisory Committee and Board Meetings (6 advisory committees and 2 boards)
• Staff Workshops (2 workshops, 55 staff)
• Council Interviews (Mayor and 6 Councillors)
• Written Submissions (6 received as of February 2024)
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2.2 What We Heard
This section highlights common themes that were heard through the consultation
activities. Figure 2 summarizes the level of public support from the community survey
for additional public spending on developing new or enhancing new parks, recreation ,
and culture facilities; this information was taken into consideration with other factors to
consider future needs.
• Clarington’s parks, recreation, and culture system is viewed as a strength of the
community that attracts new residents, visitors, and economic development to
the Municipality and it should continue to be a high priority.
• Access to parks and open spaces is important and there are opportunities to
strengthen trail connections with nature through the development of the
Bowmanville Zoo. Connecting the Municipality’s parks and trails system,
including to the rural area, valleylands, and the waterfront, was expressed,
including creating a looped trail around Bowmanville, known as the “circle of
green” was expressed.
• The Municipality’s waterfront is highly valued by the community and there is
potential for enhancement to encourage greater use such as passive recreation
opportunities, including trails and outdoor spaces for special events , performing
arts, and more.
• Emphasis should be placed on maximizing the use of existing parks,
recreation, and cultural facilities, which may require consideration for park or
facility renewal or enhancement.
• As population growth occurs, there is a need to ensure that Clarington’s parks,
recreation, and culture system expands to respond to community needs and
public expectations. This will also result in staffing and financial needs, as well
as municipal support for community organizations, service providers, and
community facility operators to ensure they are successful such as direct funding,
pursuit of grants, volunteerism, promotion, awareness, and more.
• The community is proud of CLMA’s services and resources such as the food
pantry, borrowing library, and social services. There is support for updating the
Bowmanville branch to better respond to trends such as the demand for study
rooms and makerspaces. Library services to serve the rural area of the
Municipality were also suggested. Consideration for incorporating library spaces
as part of multi-use community centres was suggested, such as what is currently
offered at the Courtice Community Complex. Enhanced library services in the
rural area were suggested, including establishing a bookmobile.
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• There is a desire for the Municipality to offer more popular recreation
activities at convenient times that work for families to ensure that everyone
has an opportunity to participate in registered programs.
• There is a strong desire for casual, unstructured activities for residents of all
ages.
• Requests were made for more facilities including, but not limited to, indoor
pools, ice pads, indoor artificial turf fields, pickleball courts, cricket pitches,
gymnasiums, youth drop-in space in the rural area, off-leash dog parks, squash
courts, outdoor fitness equipment, program and sensory rooms, indoor walking
tracks, performing arts space, and more.
• Parks, recreation, and culture facilities, programs, and services should be
accessible to persons with disabilities and inclusive of all residents ,
regardless of age, ability, income, background, and orientation.
• Clarington’s natural heritage spaces and local history is an important part of
the Municipality’s identity, and their protection and preservation need to be
considered. Promoting their enjoyment is encouraged, although it should be done
in a manner that minimizes negative impacts on the environment.
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Figure 2: Support for Additional Public Investment in Parks, Recreation and Culture Facilities
(n= 2,482 to 2,515)
85%
84%
80%
79%
76%
75%
73%
71%
71%
71%
70%
69%
68%
68%
64%
62%
60%
60%
60%
57%
56%
54%
52%
51%
51%
51%
50%
49%
48%
46%
46%
46%
45%
44%
43%
42%
42%
41%
29%
24%
21%
5%
4%
7%
5%
5%
11%
5%
7%
7%
5%
5%
5%
12%
9%
6%
13%
9%
8%
12%
11%
10%
14%
13%
12%
9%
10%
14%
13%
15%
12%
12%
18%
13%
16%
12%
20%
15%
17%
17%
27%
28%
Clarington waterfront
Paved multi-use trails
Acquisition of parks and open space
Indoor pools
Unpaved nature trails
Outdoor ice rink / trail
Playgrounds
Fitness centres
Indoor multi-use sports dome
Space for community events
Splash pads
Dedicated youth centres
Arenas (indoor ice)
Indoor walking track
Gymnasiums
Outdoor swimming pools
Therapy pools
Outdoor education space
Community gardens
Library branches
Outdoor soccer fields
Outdoor fitness equipment
Indoor space for large special events
Arts and crafts program rooms
Dedicated 55+ centres
Outdoor basketball courts
Heritage buildings
Community halls and meeting spaces
Outdoor reading garden
Outdoor tennis courts
Performing arts space
Baseball or softball diamonds
Performing art spaces
Museums
Sports field for football and rugby
Off-leash dog parks
Outdoor pickleball courts
Skateboard parks
Outdoor lacrosse boxes
Disc golf course
Cricket fields
Strongly Support or Somewhat Support Strongly Opposed or Somewhat Opposed
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3. Parks Plan
This section provides the Municipality with direction on planning, acquiring, developing,
and designing parks, as well as guidance on enhancing Clarington’s recreational trail
system based on available park data, existing approaches and best practices in other
municipalities, provincial legislation, and other key inputs. This section satisfies the
Municipality’s requirement for a Parks Plan under Section 42 of the Planning Act that
examines the need for parks (it is noted that school boards were engaged as part of this
Master Plan process).
3.1 Defining Parks
Parks refers to municipal lands that are suitable for the development or installation of
built recreational amenities (such as sports fields, playgrounds, courts, etc.) and may be
used for both organized and unorganized activities.
The Municipality’s parks are complemented by open greenspaces and natural areas,
as well as non-municipally owned lands, including conservation areas and the
waterfront. Open greenspaces and natural areas refer to sites with no to low
development potential and are primarily designated for purposes such as provincially
significant wetlands, environmentally significant and sensitive natural areas,
watercourses, floodplains, etc. Due to the lack of development potential of these lands,
they are generally used for low-intensity recreation activities only. While open
greenspaces and natural areas are not a direct focus of the Master Plan, their important
contributions to complementing the parks system are recognized.
3.2 Park Hierarchy
A park hierarchy is used to guide the development of park types by defining the size,
form, function, and or level of amenity found within them. The hierarchy system allows
the public to understand what a park might include and can position parks to be
compatible with neighbouring land uses. Clarington’s park hierarchy is established in
the Municipality’s Official Plan, which classifies parks into six categories – Municipal
Wide Parks, Community Parks, Neighbourhood Parks, Parkettes, Public Squares, and
Hamlet Parks.
A review of existing park descriptions revealed that there are opportunities for
adjustments to reflect what currently exists in Clarington’s parks system, respond to
planning legislation, and reflect best practices in park design and the public’s desire for
enhanced amenities and features. Recommended park sizes are based on the types of
outdoor active recreation facilities that are permitted in each classification; not all
outdoor active recreation facilities are expected to be accommodated at each individual
park.
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The adjusted park hierarchy recommended through this Master Plan includes five
park types, including Municipal Wide Parks, Community Parks, Neighbourhood Parks,
Parkettes, and Urban Parks and Squares (Table 2). The recommended park hierarchy
should be considered by staff as part of the Official Plan Review process; further
refinements by the Municipality may be necessary, particularly to reflect any new
planning legislation that may be forthcoming that may impact park provision. The
Municipality should review and reclassify its parks supply to align with the
recommended hierarchy.
Table 2: Recommended Park Hierarchy
Park Type
Municipal Wide Parks are designed to serve the entire Municipality. They are focal
points of Clarington that offer flexible space and programming for large -scale
gatherings, special events, and to accommodate facilities for the Municipality,
including major sports parks or complexes with multiple lit sports fields. Municipal
Wide Parks should primarily include outdoor active recreation uses as well as other
features such as trail linkages. The size and shape of Municipal Wide Parks will
depend on the attributes of the property and the specific program for the park.
Community Parks are designed to serve community and recreational needs of
several neighborhoods at a smaller scale compared to Municipal Wide Parks.
Community Parks should primarily include outdoor active recreation uses as well as
other features such as trail linkages. Community Parks shall have a minimum size of
five hectares to accommodate the outdoor recreation facilities that are typically
expected within these types of parks.
Neighbourhood Parks are designed to serve the local neighbourhood of surrounding
residents. Neighbourhood Parks may include a limited range of outdoor recreation
facilities and passive open space for casual use, including an unlit sports field, as well
as trail linkages. Neighbourhood Parks shall have a minimum size of 2.5 hectares to
accommodate the outdoor recreation facilities that are typically expected within these
types of parks to a maximum of five hectares.
Parkettes are intended to augment the recreation, leisure and amenity needs of a
neighbourhood but will not contain sports fields. They shall be between 0.5 and 0.8
hectares in size. They are required whenever the Municipality deems it necessary to
augment, provide a good distribution of parks, or adjust the park requirements of any
neighbourhood.
Urban Parks and Squares are intended to enhance the public realm by providing
defined spaces for social interaction and are generally incorporated within Priority
Intensification Areas. They shall be a minimum of 0.4 hectare in size and can be
used for small-scale outdoor activities/games, along with cultural events, public art,
and farmers’ markets. They shall be highly visible from the dominant street frontage
and shall be designed to support activity year-round. Urban Parks and Squares shall
be unencumbered by underground parking, utilities and other infrastructure and have
suitable soil to support the growth of large trees.
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Clarington’s parks are complemented by open spaces and natural areas that
contribute to the broader natural heritage system, although they may support limited low
impact outdoor active recreation uses, such as Bowmanville Park on the former Zoo
Lands. Open spaces and natural areas may include land encumbrances and natural
hazards such as floodplains and other land constraints.
Recommendations
1. Guided by this Master Plan, incorporate a new park hierarchy as part of the
Municipality’s Official Plan Review to ensure that it reflects parks that exist or
are planned in Clarington, as well as to align with modern expectations and best
practices in different park types, particularly in emerging intensification areas.
The Municipality should review and reclassify its park supply to align with the
new hierarchy system.
3.3 Park Facilities and Amenities
As Clarington’s population grows and becomes more diverse, the Municipality can
anticipate increased pressure for a broader range of outdoor recreation facilities,
amenities and features within its parks. There is merit in establishing a detailed
framework that defines appropriate facilities and amenities for each park type to
continue to guide the development of park spaces, as well as to respond to public
requests in a consistent and transparent manner. The following table is a park facilities
and amenities framework, which is based on what currently exists in Clarington, as well
as park planning best practices from other GTA municipalities. The Municipality should
use this framework as the basis for developing a detailed design manual for facilities
and amenities that should be located in each type of park.
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Table 3: Park Facility and Amenity Framework
Facilities and Amenities Municipal
Wide
Community
Wide Neighbourhood Parkette Urban
Rectangular Field (Lit Artificial)
Rectangular Field (Lit Grass)
Rectangular Field (Unlit Grass)
Ball Diamond (Lit)
Ball Diamond (Unlit)
Cricket Grounds
Sport Courts (Tennis, Pickleball, Basketball)
Outdoor Pools
Splash Pads
Spray Features
Skate Parks
Skate Zones
Pump Tracks
Leash-Free Dog Parks
Community Gardens
Outdoor Fitness Equipment
Playgrounds
Skating Surfaces (Refrigerated)
Skating Surfaces (Natural)
Outdoor Lacrosse Boxes
Special Event Spaces
Parking Lot
Park Seating
Park Shade Structures
Park Washrooms (Permanent)*
Park Washrooms (Temporary)**
Public Art
Bicycle Parking
Pathway/Trail Linkages
Drink Fountains / Bottle Filling Stations
Unprogrammed Open Spaces
Naturalized Spaces
Environmental Sustainability Features
* Standalone permanent washroom or within an on -site community facility.
** A temporary washroom may be provided if there is a permitted sports field or diamond.
= Mandatory = Optional
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Recommendations
2. Use the recommended park facilities and amenities framework contained in this
Master Plan as the basis for developing a detailed design manual to establish
standards for facilities and amenities for each park type according to the
recommended park hierarchy. As a best practice, the development of indoor
community and recreation facilities on parkland should be minimized to ensure
that sufficient space is available to meet needs for outdoor recreation and
cultural facilities and amenities.
3.4 Park Policies
Existing Parkland Dedication Policies
Clarington’s parkland dedication policies are outlined in Section 23.10 of the Official
Plan. Under this section of the Official Plan, the Municipality requires the conveyance of
land for park or other public recreation purpose, which should be free of encumbrances.
The policies state that the conveyance of land shall be in accordance with the following
(which are implemented through the Municipality’s Parkland and Open Space
Dedication By-law (#2023-042)):
a) For residential development, redevelopment or plans of subdivision providing for
low, medium and/or high density uses, conveyance or dedication shall be either
equal to 5% of the land proposed for development, redevelopment or subdivision
or one hectare per 300 dwelling units, whichever is greater;
b) For industrial or commercial development, redevelopment or subdivision, a
conveyance or dedication based on 2% of the land;
c) For mixed use development, conveyance or dedication requirements will only
apply to the residential portion of the development proposal in the amount equal
to one hectare per 300 dwelling units. However, in no instance shall the
contribution be less than 2% of the land area or the equivalent payment-in-lieu
value;
d) For conversion of non-residential buildings to residential uses, dedication will be
in accordance with Subsection (a) with appropriate credit to be made for any
previous dedication; and
e) For residential plans of subdivision, the standard of one hectare per 300 dwelling
units may be applied to blocks within the plan of subdivision, provided such
blocks are excluded from the calculation for the 5% of the land proposed for
subdivision.
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Section 23.10.4 identifies that the Municipality may accept cash-in-lieu of parkland (or a
combination of cash and land) where:
a) The use of the alternative parkland dedication policy consumes more than 10%
of the site area thereby rendering the site undevelopable; or
b) The amount of land for parkland does not result in a sufficient area of park
development; or
c) The dedication of land is not deemed necessary.
Alignment with the Amended Planning Act
In recent years, a number of changes have been made or proposed to the parkland
dedication requirements established in the Planning Act:
• Bill 108 (More Homes, More Choice Act, 2019) proposed sweeping changes to
parkland dedication requirements, but these changes were not brought into force
as they were ultimately further amended through Bill 197.
• Bill 197 (COVID-19 Economic Recovery Act, 2020) introduced a clause for
existing parkland dedication by-laws that use the alternative rate (September 18,
2022); whereby new by-laws are appealable to the Ontario Land Tribunal.
• Bill 109 (More Homes for Everyone Act, 2022) amended parkland requirements
on lands designated as transit-oriented communities, including allowances for
encumbered lands.
• Bill 23 (More Homes Built Faster Act, 2022) was introduced in October 2022 and
came into effect on November 28, 2022. This Act introduced significant changes
to parkland dedication requirements (among many other aspects of the Planning
Act, Development Charges Act, etc.), including but not limited to reductions in the
alternative parkland dedication requirement (including capping based on land
area), exemptions for affordable, attainable, and non -profit, inclusionary zoning
affordable, and additional residential dwelling units and allowing the Province to
prescribe criteria for municipal acceptance of incumbered lands and privately
owned public spaces (POPs) for parks purposes.
• Bill 134 (Affordable Homes and Good Jobs Act, 2023) was enacted on
November 28, 2022, whereby the definition of affordable residential units was
amended to introduce an income-based test for affordable rent and purchase
price, and increased the threshold for the market test from that originally defined
through Bill 23).
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A summary of changes is provided below, and additional detail is provided in the
Funding Discussion Paper prepared as a supporting background document to this
Master Plan:
• The maximum alternative dedication rate has been reduced to one hectare
per 600 units for parkland and one hectare per 1,000 units for cash -in-lieu.
Further, the legislation caps the maximum alternative dedication rates at 10% of
the land for sites five hectares or less and 15% for sites larger than five hectares.
• Affordable residential units, attainable residential units, inclusionary zoning
residential units, non-profit housing and additional residential unit developments
are exempt from parkland dedication requirements.
• Parkland rates are frozen as of the date that a zoning by-law or site plan
application is filed. The freeze is effective for 18 months to two years after
approval, depending on the date of when the application was filed.
• To take effect at a future date, developers will be able to identify the land they
intend to convey to the municipality for parkland. These lands may include
encumbered lands such as privately owned public space (POPS) and
stratified parks (strata parks). If an agreement cannot be reached, the
municipality or the landowner can appeal to the Ontario Land Tribunal. This may
result in less suitable lands being provided as parkland dedication.
• There is a new requirement for the municipality to spend or allocate at least
60% of the monies in their parkland reserve at the beginning of each year.
• A parks plan must be developed prior to passing a parkland by-law. Previously,
this requirement applied only to those municipalities that authorized use of the
Section 42 alternative rate, but now includes those that include the standard rate.
This Master Plan will fulfill this requirement for a Parks Plan.
The Municipality is currently undergoing an Official Plan Review and as a result, it is an
opportune time to update its parkland dedication policies to the above noted changes to
align with the amended Planning Act. Monitoring Provincial updates associated with the
aforementioned legislation or new legislation and evaluating its impact on the
Municipality’s new parkland dedication by-law will also be required, with consideration
given to future updates, as necessary.
A Framework for Accepting Encumbered Lands
With park needs generated by population growth within intensification areas, Clarington
will require a multi-faceted strategy for providing parks given the current legislative
environment. As previously identified, the amended Planning Act allows municipalities to
accept privately-owned public spaces (POPS) to supplement traditional dedication.
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POPS are accessible to the public using legal agreements between a property owner
and a municipality, though such agreements may sometimes have restrictions or
limitations with respect to access or amenities available. These types of agreements
guarantee that the park space is designed, built, and maintained to the municipality’s
standards, and that it is open and accessible to the public at all times (or otherwise to
the satisfaction of the municipality). They may include, but are not limited to, plazas,
courtyards, or pedestrian walkways that create the opportunity for community-building
and interaction. POPS should be designed to complement municipally owned
public parks, rather than replace them.
Stratified parks (or strata parks) are another form of encumbered lands that can
complement municipally owned public parks. Strata ownership is used where a park
element is built over the top of infrastructure (e.g., parking garage, stormwater
management facility, highway underpass, etc.). Strata parks can be owned by the
municipality under agreements established through the C ondominium Act and be fully
accessible to the public. It is vital that strata parks be accompanied by a
management agreement and consideration of long-term maintenance and asset
management costs as they have a more limited lifespan due to the waterproofing
membrane over structures, requiring significant disruption to the park and park
infrastructure above. These costs need to be captured in the financial valuation and
long-term agreement.
Strata parks often have encumbrances that prohibit certain types of construction within
the park due to weight limits or intrusions (e.g., tree roots, etc.) or other accessibility
concerns. It is important that the municipality exercise control over the de sign and
development of the site to ensure that it contains necessary amenities and is designed
to municipal standards (e.g., accessibility, maintenance, etc.). At the discretion of
municipalities, strata parks can be accepted as partial or full parkland c redit.
Traditionally, encumbered lands such as POPS and strata parks were excluded from the
required land dedication amounts by municipalities as they are not suitable
replacements nor equivalent to parkland. Through the Planning Act regulations being
developed in support of Bill 23, landowners will now be allowed to identify lands to meet
parkland conveyance requirements, within regulatory criteria (not yet developed).
Municipalities may enter into agreements with the owners of the land to enforce
conditions and these agreements may be registered on title. The suitability of land for
parks and recreation purposes will be appealable by the municipality to the Ontario
Land Tribunal.
Encumbered lands are more expensive to maintain and harder to program. As a result,
there are concerns that developer-identified lands may not fully contribute to the overall
parks system as there is a greater potential for the lands to be in unsuitable lo cations,
be under-sized, or not be functional to accommodate the required amenities. It is
common for municipalities to have location and development criteria for parkland
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embedded within their Official Plans, including restrictions for encumbered lands,
hazard lands, steep slopes and unstable lands, environmentally protected lands, etc.
Section 23.10.1 of Clarington’s Official Plan, as well as the Municipality’s Parkland and
Open Space Dedication By-law, identifies that all parkland dedicated to the Municipality
shall be free of encumbrances. Staff report PDS-054-22 on Bill 23’s changes to the
Planning Act also recognizes that accepting encumbered lands as part of parkland
dedication will detrimentally impact Clarington’s ability to deliver access to quality, safe
and functional park spaces for residents. Some municipalities have introduced Official
Plan policies guiding the provision of encumbered lands such as POPS and strata
parks. The City of Vaughan is one example and a cursory summary of relevant policies
in the City’s Draft Comprehensive Official Plan Amendment is found in Appendix A .
Accepting encumbered lands as part of parkland dedication continues to be
discouraged; however, should the changes to the Planning Act come into effect that
obligate municipalities to accept encumbered lands as part of parkland dedication, the
Municipality should use the information presented in this sub -section and in Appendix A
to develop a Clarington solution. Monitoring the release of Provincial regulations guiding
encumbered lands will be required.
Recommendations
3. As part of the Municipality’s Official Plan Review, the following actions are
recommended to be undertaken as it relates to Section 23.10 of the Official Plan
(Parkland Dedication):
a. Identify that non-profit housing development, inclusionary zoning affordable
units, and additional residential units (as defined in the Planning Act) are
exempt from parkland dedication and developments with affordable and
attainable residential units are subject to reduced parkland dedication amounts
as identified by the Planning Act.
b. Update the alternative rate in Section 23.10.3(a), (c) and (e) to one hectare of
parkland per 600 dwelling units.
c. For the alternative rate, reflect that the amount of parkland conveyed or
required as a payment-in-lieu of parkland shall not exceed 10% of land or
value of land where the land subject to the development is 5 hectares or less,
or 15% of land or value of land where the land subject to the development is
greater than 5 hectares.
d. Section 23.10.4 shall be updated to reflect that payment-in-lieu of parkland
dedication will be calculated at a rate of one hectare per 1,000 dwelling units .
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Recommendations
e. Identify that the dedication of land that is suitable for the development of
parkland should be maximized to achieve the recommended parkland service
level and accommodate the outdoor recreation facility needs as identified by
this Master Plan.
f. Identify that parkland payment-in-lieu rates are frozen as of the date that a
zoning by-law or site plan application is filed. The freeze is effective for two
years after approval.
g. Identify that the Municipality spend or allocate at least 60% of money collected
from payment-in-lieu of parkland dedication annually (based on the opening
balance of the parkland reserve fund).
h. Develop policies guiding the acceptance of encumbered lands such as
privately owned public space (POPS) and strata parks based on the guidance
and best practices provided by this Master Plan, including Appendix A.
Appropriate legal agreements must be established to address park design and
construction standards, public access, maintenance, etc. These policies should
only be developed if changes to the Planning Act come into effect that obligate
municipalities to accept encumbered lands as part of parkland dedication .
i. Establish location and development guidelines describing what constitutes
acceptable parkland dedication from developers. These guidelines should
consider restrictions for encumbered lands such as hazard lands, steep slopes
and unstable lands, environmentally protected lands, rights-of-ways and
easements, contaminated lands, etc.
j. Monitor Provincial announcements regarding new or updated legislation
relevant to parkland and evaluate the impact on parkland dedication practices
in Clarington. Updates associated with the implementation of Bill 23 or to
understand regulations/criteria guiding parkland conveyance as it relates to
encumbered parkland (e.g., strata parks and POPS), and evaluate its impact
on the Municipality’s Official Plan Review and Parkland Dedication By-law.
4. Update the Municipality’s Parkland and Open Space Dedication By-law to
ensure that it aligns with the amended Planning Act. Refer to Recommendation
#3 for applicable changes as part of the update process.
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3.5 Park Service Levels and Future Needs
Existing Park Supply and Service Levels
The Municipality’s GIS park inventory was reviewed, and some parks were
recategorized to align with the hierarchy recommended by this Master Plan. Based on
this inventory, Clarington has approximately 220 hectares of parks that are suitable for
the development of built outdoor recreational amenities (such as sports fields,
playgrounds, courts, etc.) that may be used for both organized and unorganized
activities. This amount excludes open spaces, naturalized areas, future or undeveloped
parks, and non-municipally owned parks (e.g., conservation areas). The existing park
supply translates into a service level of 2.0 hectares per 1,000 residents.
Table 4: Park Supply
Park Hierarchy Park Supply
(hectares)
Current Service Level*
Municipal Wide Parks 95.9 0.9 ha per 1,000 residents
Community Parks 30.4 0.3 ha per 1,000 residents
Neighbourhood Parks 73.3 0.7 ha per 1,000 residents
Parkettes/Urban Parks and Squares 20.4 0.2 ha per 1,000 residents
Total Park Supply 220.0 2.0 ha per 1,000 residents
*Current service level based on a population estimate of 108,757 persons. Excludes future/undeveloped parks
including those in secondary plan areas, open spaces and naturalized areas such as Bowmanville Park on the former
Zoo Lands, the Samuel Wilmot Natura Area, as well as non-municipal lands including the Darlington Provincial Park
and lands owned by the Central Lake Ontario Conservation Authority. Park supply is current as of October 2023.
Recommended Park Service Level
Most municipalities use population-based targets to calculate and plan parks. A parks
target is particularly important as it is becoming more complex and costly to secure
quality parcels for parks within new higher density forms of development. Traditionally,
residential intensification has generated less parks per capita than greenfield
development – and certainly smaller park blocks – making it difficult to accommodate
the desired recreational activities that residents have come to expect from the parks
system.
On a Municipal-wide basis, the Official Plan currently identifies that the parkland
standard is 1.8 hectares per 1,000 persons , which is lower compared to the
Municipality’s current service level (Table 4). The Official Plan segments service level
based on park type, where Municipal Wide Parks and Community Parks have a
combined target of 1.0 hectares per 1,000 persons and Neighbourhood Parks,
Parkettes, and Public Squares have a combined target of 0.8 hectares per 1,000
persons.
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It is recommended that the Municipality adjust the park standard to align with its
current level of service at 2.0 hectares per 1,000 persons to guide future needs over
the planning period. To ensure that the Municipality is acquiring and developing the right
types of parks, specific service targets for each park type in the recommended hierarchy
have been revised. These changes are deemed to be appropriate for the
Municipality based on:
• An understanding of future population projections and a comparison of the
Municipality’s parks standard and established targets in comparable
communities.
• A review of the existing park inventory, and the recognition that the existing
supply is generally meeting current outdoor recreation facility needs but is not
providing surplus parkland.
• Projected park requirements to support forecasted outdoor recreation facility
needs based on estimated lot coverage calculations.
• Recognition of recent amendments to the Planning Act, the Municipality will likely
receive Neighbourhood Parks, Parkettes and Urban Parks and Squares through
the parkland dedication process, although an emphasis should be placed on
acquiring Neighbourhood Parks to support projected outdoor recreation facility
needs. Alternative acquisition methods will need to be used to secure lager
Municipal Wide and Community Parks, particularly to satisfy most of the sports
field needs (rectangular fields, ball diamonds, cricket fields).
• Recognition that Clarington residents highly value access to parks as 80% of
community survey respondents indicated that acquiring parks (and open space)
should be a high priority for the Municipality.
Table 5: Recommended Park Standards by Type
Park Type Existing Official
Plan Target
Recommended
Target
Municipal Wide Parks and Community Parks 1.0 hectares per
1,000 residents
1.1 hectares per
1,000 residents
Neighbourhood Parks 0.8 hectares
0.75 hectares per
1,000 residents
Parkettes/Urban Parks and Squares Per 1,000 residents 0.15 hectares per
1,000 residents
Total (sum of the park targets) 1.8 hectares per
1,000 residents
2.0 hectares per
1,000 residents
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Future Park Needs for Outdoor Recreation Facilities
Clarington is projected to reach a population of 162,640 residents by 2036. Based on a
total service target of 2.0 hectares per 1,000 residents, the Municipality will require a
total of 325.3 hectares of parks, which is 105.3 hectares more than what is currently
provided. This amount includes 52.6 hectares of Municipal Wide Park and Community
Park, 48.7 hectares of Neighbourhood Park, and 4 hectares of Parkettes and Urban
Squares.
Table 6: Future Park Needs by Type Based on Recommended Service Standards (hectares)
Existing Park
Supply
(pop=108,757)
2036 Park
Supply
Requirements
(pop=162,640)
Additional
Park
Needs
Municipal Wide Park / Community Park
(1.1 hectares per 1,000 residents) 126.3 178.9 +52.6
Neighbourhood Park
(0.75 hectares per 1,000 residents) 73.3 122.0 +48.7
Parkettes/Urban Parks and Squares
(0.15 hectares per 1,000 residents) 20.4 24.4 +4.0
Total
(2.0 hectares per 1,000 residents) 220.0 325.3 +105.3
Acquiring over 100 hectares of parks will be an ambitious goal but one that is necessary
to maintain the current and recommended level of service and to accommodate the
supply of additional outdoor recreation facilities required to meet community needs by
2036 including:
• 31.5 unlit equivalent outdoor rectangular
fields (or 21 lit fields)
• 17 unlit equivalent ball diamonds (or 11 lit
diamonds)
• 1 dedicated cricket field
• 17 tennis courts
• 22 pickleball courts
• 10 basketball/multi-use courts
• 14 splash pads
• 2 cooling stations
• 6 small-scale skate zones
• 1 leash free dog park
• 2 compact leash free dog parks
• 1 community garden
• 30 playground locations
• 4 locations with outdoor fitness
equipment
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Maximizing Park Dedication
In terms of how the Municipality should meet its future park needs, maximizing
parkland dedication requirements as permitted by the Planning Act is recommended.
The Municipality has historically secured Neighbourhood Parks and Parkettes as a
condition of development and it is expected that this will continue. With recent
amendments to the Planning Act that have reduced parkland dedication amounts, it is
recognized that the amount of parkland conveyed to the Municipality will be less than
what Clarington has been historically accustomed to and in some cases, there may be a
need to augment parkland conveyance with alternative acquisition methods such as
purchasing land from developers to yield a larger Neighbourhood Park size that would
be sufficient to accommodate a range of outdoor recreation facilities to serve local
residents (e.g., one unlit sports field, playground, splash pad and open greenspace) or
purchasing lands to ensure a good distribution promoting walkability to a park .
Prioritize Park Dedication in Future Growth Areas to Address Service Gaps
A distributional park analysis was undertaken by applying an 800 -metre service area
(about a 10-minute walk) to Clarington’s park supply, which found that the Municipality’s
established urban areas are well served with parks. As a result, an emphasis should
be placed on parkland dedication in Secondary Plan Areas, which are expected to
accommodate a sizable portion of future population growth and ensure that residents in
these areas are within walking distance of park s. The Municipality currently has several
Secondary Plan Areas in Bowmanville, Courtice and Newcastle which are in various
stages of planning, design and development. Based on what is known at this time,
there are approximately 51 hectares of parks planned within the Municipality’s
Secondary Plan Areas.
The majority of parks planned in these areas are Neighbourhood Parks and Parkettes,
with the exception of one Community Park. However, the total park amount within
Secondary Plan Areas to be obtained through parkland dedication is expected to
change as the development of Secondary Plans work through the approval process and
or plans of subdivision are brought forward for approval. Identified park amounts in
approved Secondary Plan Areas may also be subject to change as development
applications come forward due amendments to the Planning Act because of Bill 23 that
resulted in reduced parkland dedication amounts both in physical parkland and cash in-
lieu of parkland; parkland identified in approved plans of subdivision have been
committed to the Municipality by landowners.
It is expected that the Municipality will have the greatest opportunity to address
Neighbourhood Park and Parkette requirements within its growing Secondary Plan
Areas. Maximizing physical park dedication is recommended. One strategy to
consider is to work with landowners within Secondary Plan Areas to create a master
parks agreement to share park dedication requirements that can result in more
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meaningful park sizes (or cash-in-lieu of parkland). This approach can avoid the
dedication of multiple, undersized park parcels conveyed by individual developers that
may not be large enough to accommodate usable park s to support outdoor recreation
facilities, including a sports field. In some cases, it may also be more advantageous to
accept a combination parkland at a reduced size and cash -in-lieu of parkland, which
could be used to fund future parkland acquisition in strategic locations.
Alternative Strategies to Acquire Parkland
The amended Planning Act means that the Municipality will be eligible to receive less
parkland or cash-in-lieu of parkland. The Municipality has studied the impact of Bill 23
on the community and found that this will result in a decrease in parkland or cash -in-lieu
of parkland of 50% or more. Example scenarios of pre- and post-Bill 23 impacts are
found in Appendix B. While the Municipality will need to maximize parkland dedication
amounts as permitted by the Planning Act, it will not be sufficient to meet t he
recommended service target and provide the necessary outdoor recreation facilities
identified in this Master Plan. As a result, park conveyance tools in the Planning Act
must be complemented with alternative acquisition strategies, particularly to acquire
larger parcels of land for Municipal Wide and Community Parks, or to attain more
Neighbourhood Parks.
Historically, Clarington’s Municipal Wide and Community Parks were secured through
acquisition methods outside of the Planning Act. This will continue to be the primary
method for acquiring major parks, although it is recognized that there may be
opportunities to secure higher order parks through the development process as well.
Clarington’s Soper Hills Secondary Plan Area (currently under development) identifies a
Community Park, although the park size is still to be determined. According to the
recommended park hierarchy it should be a minimum of five hectares, although larger is
preferred to accommodate the sports field needs identified in this Master Plan . Should
the Municipality be successful in acquiring and developing this park, there will be a need
to acquire the remaining 47.6 hectares of Municipal Wide and Community Park to
achieve identified needs (a total of 52.6 hectares). To meet this requirement, the
Municipality will need to explore alternative strategies to parkland dedication (as
permitted by the Planning Act) such as:
a) Municipal land purchase (with a focus on priority areas, expansion of existing
park sites, or land-banking), funded from a Park Reserve Fund, Community
Benefit Charges, general tax funding, grants, donors, etc.
b) Land exchanges or swaps.
c) Off-site conveyance of parkland.
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d) Establishment of a Parks Foundation (e.g., community, corporate, or municipal
donations towards parkland acquisition).
e) Acquiring surplus school sites.
f) Reallocating surplus municipal lands for park use .
g) Partnership/joint provision of lands with local partners under agreement.
h) Land lease (recognizing this strategy may have restrictions on the use of the land
and/or what facilities can be constructed and would be subject to the terms of the
agreement).
Although not land-based expansion, enhancements to existing parks through general
renewal or redevelopment initiatives will need to be considered to increase park and
outdoor recreation opportunities within proximity to intensification areas and MTSAs.
Planning for a Sports Field Complex
This Master Plan identified needs for large land consuming sports fields such as
outdoor rectangular fields, ball diamonds, and a cricket field. While some unlit fields
may be incorporated into Neighbourhood Parks, the majority of needs will need to be
accommodated at Municipal Wide Parks and Community Parks. There are currently no
opportunities to significantly accommodate projected sports field needs within the
existing parks supply, although this Master Plan has also recommended strategies for
upgrading existing sports fields to enhance quality and playing capacity, as well as
exploring potential partnerships with other landowners.
It is a best practice to co-locate multiple sports fields at major parks to create
efficiencies in municipal operations, programming fields, and hosting tournaments, as
well as to rationalize supporting amenities to facilitate a high-quality user and spectator
experience. Centralizing sports fields at fewer major parks also alleviates sports field
pressure at other locations, allowing municipalities to reclaim valuable open space for
other needed active or passive recreation uses.
There is strong merit in undertaking a planning process to identify and acquire land for
the purposes of developing a sports field complex(es) to assist in meeting the
Municipality’s long-term sports field needs. Based on identified sports field needs as
they are currently defined, there is an additional need for 21 lit outdoor rectangular
fields, 11 lit ball diamonds, and 1 dedicated cricket field. This would be a challenge to
provide at a single location given the significant land needs that would be requ ired. As a
starting point for the purposes of defining land needs, a sports field complex in
Clarington could include 4 lit ball diamonds, 6 lit outdoor rectangular fields, and one lit
dedicated cricket field, which would require approximately 30 hectares of developable
parkland. The remaining sports field needs would be met at other future parks in
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Clarington subject to reconfirming sports field needs and consultation with sports field
groups (potentially as part of a 5-year review of this Master Plan).
Table 7: Site Requirements for a Potential Sports Field Complex
Potential Sports Field Complex
Facility Needs Estimated Area Per Facility * Facility Area
4 Lit Ball Diamonds 2.8 hectares 11.2 hectares
6 Lit Outdoor Rectangular Fields 2.0 hectares 12.0 hectares
1 Lit Dedicated Cricket Field 4.0 hectares 4.0 hectares
Sub-Total Facility Area 27.2 hectares
Miscellaneous Space
Requirements (10%) 2.7 hectares
Total Site Requirements 29.9 hectares
To guide the sports field site selection process, consideration should be given to the
criteria in the following table (additional factors may be developed by Municipality staff):
Table 8: Site Selection Criteria for Acquiring a Future Sports Complex(es)
Criteria Considerations
Location and Access The preferred site should be reasonably located in
proximity to residents and transportation corridors,
including arterial roads, Highway 401, public transit, active
transportation routes, etc.
Development
Potential and
Constraints
The preferred site should have suitable grading and be
large enough to accommodate multiple sports fields
(phased in over time as need is demonstrated), including
associated setbacks and amenities such as parking,
lighting and supporting infrastructure.
The preferred site should have no or limited constraints
(e.g., environmental, historical, etc.).
Land Compatibility The preferred site should be compatible with adjacent land
uses and comply with applicable planning policies.
Expansion
Opportunities The preferred site has the potential for long -term expansion
to accommodate other outdoor uses and features.
User Group Support
and Partnership
Potential
The preferred site should be supported by user groups with
the potential to partner with an organization(s).
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Figure 3: Distribution of Existing and Future Parks
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Figure 4: Distribution of Existing and Future Parkland, Courtice and Bowmanville
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Figure 5: Distribution of Existing and Future Parkland, Newcastle and Orono
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Parks in Intensification Areas
Residential development is also expected through
intensification of designated Urban Centres and Major
Transit Station Areas (MTSAs) such as Bowmanville
GO and Courtice GO. It will be important for the
Municipality to acquire lands for urban parks and
squares to facilitate passive recreational opportunities
or play a supporting role in complimenting
surrounding land uses by providing places for people
to meet, gather, and socialize. Community groups
and other stakeholders often desire public spaces in
urban settings to hold community programs and
special events within the downtown or other well -
established areas. Integrating parks and open spaces
in these neighbourhoods have become a key
component in providing livable urban spaces for a
community to come together, while also softening the
streetscape with green features.
While the provision of urban parks and squares are beneficial to improving the quality of
life and sense of place, they can be a challenge for municipalities to provide and
maintain. For example, it may not be financially viable for the Municipality to acquire
land in these areas due to high acquisition costs, proponents may offer off -site
dedications that may not serve the needs of residents living in intensification areas, and
year-round maintenance may also pose a challenge. The use of robust materials a nd
enhanced maintenance may also be required to reflect a greater intensity of use.
The challenges associated with providing parks within Clarington’s urban areas
highlights the need to ensure that linkages exist to connect residents to existing and
planned parks and trails. Efforts to enhance connections are underway through
recreational trail recommendations advanced through this Master Plan along with other
initiatives such as the Municipality’s Active Transportation Master Plan. Further
emphasis also needs to be placed on creating a public realm that enhances pedestrian
connections to the outdoors through streetscape and tree canopy enhancements.
Newcastle Cenotaph
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Complementing Parks with Open Greenspaces and Natural Areas
Open greenspaces and natural areas such as the Bowmanville Park on the former Zoo
Lands, Samuel Wilmot Nature Area and Darlington Provincial Park will continue to be
important components of the Clarington’s open space system to connect residents and
visitors to nature and enjoy the Municipality’s natural heritage features. While the
Municipality may continue to acquire these types of spaces, they are generally not
suitable for the development of most outdoor active recreation amenities, although
some low impact features may be accommodated in appropriate areas.
The Municipality is currently in the process of planning Bowmanville Park on the
former Zoo Lands (Figure 6). Covering 13.7 hectares, the Bowmanville Park lands
were transferred to the Municipality in 2018, and planning is underway to create a long-
term vision for this site. The lands are located in a floodplain and are not suitable to
support built structures and/or major infrastructure; due to these limitations,
Bowmanville Park is considered to be an open greenspace and natural area . A
Bowmanville Park Master Plan is currently being prepared and the draft concept, which
is subject to change, proposes a range of low-impact recreation uses, including
gathering and event space, performance amphitheatre, commemorative forest,
demonstration garden, trails, open space, playground, outdoor fitness equipment,
landscaping, and supporting park features.
Consultation through this Master Plan found that there was strong support for these
features. Bowmanville Park is highly valued by the community, and it is recognized as
one of the Municipality’s greatest natural assets. As a result, many residents felt that it
should be a priority for the Municipality, although it is recognized that the development
of the Bowmanville Park must be balanced with other corporate priorities, funding
availability, and other factors (e.g., partnership opportunities). Once finalized, the
Bowmanville Park Master Plan will provide the Municipality with a guide to inform the
budget process and development process.
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Figure 6: Preliminary Concept for Bowmanville Park on the former Zoo Lands (Draft June 2024)
Source: Bowmanville Park Master Plan, 2024
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Recommendations
5. Through the Official Plan Review, update the Municipality’s parkland service
target to 2.0 hectares per 1,000 residents, including:
a. 1.1 hectares per 1,000 residents for Municipal Wide Parks and Community
Parks.
b. 0.75 hectares per 1,000 residents for Neighbourhood Parks.
c. 0.15 hectares per 1,000 residents of Parkettes, and Urban Squares and Parks.
6. Acquire 105.3 hectares of parkland to achieve the recommended parkland
service target including:
a. 52.6 hectares of Municipal Wide Parks and Community Parks
b. 48.7 hectares of Neighbourhood Parks
c. 4.0 hectares of Parkettes, and Urban Squares and Parks.
7. Maximize parkland dedication opportunities, particularly in Secondary Plan
Areas with an emphasis on acquiring Neighbourhood Parks of sufficient size ;
working with landowners to prepare a Master Parks Agreement is encouraged;
efforts to acquire a Community Park in the Soper Hills Secondary Plan Area
continues to be supported.
8. Explore alternative acquisition strategies to acquire larger Municipal Wide Parks
or Community Parks to augment tools permitted by the Planning Act including,
but not limited to, land purchase/lease (e.g., land banking, surplus school sites,
etc.), land swaps/exchanges, partnerships, reallocation of surplus land, etc.
Accepting a combination of land and cash-in-lieu of parkland is also
encouraged.
9. Initiate a site selection process to identify and purchase a minimum of 30
hectares of land to create a sports complex to assist the Municipality in
addressing longer-term sports field demand that cannot be accommodated in
existing and future parks. Site criteria should include, but not be limited to,
location and access, development potential and constraints, land compatibility,
expansion opportunities, and user group support and partnership potential.
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3.6 Park Design Strategies
Prioritize Strategic Park Redevelopment
The renewal of existing parks and park-based
infrastructure and the allocation of resources will be
required over the course of this Master Plan. For
example, existing parks in and within proximity to
Clarington’s strategic growth areas such as Urban
Centres, Village Centres, and Major Transit Station
Areas – are critical for building a sense of community
and social belonging. However, they may not reflect
community needs as they may not contain the
amenities that people living around them are seeking
as residential areas redevelop and/or intensify.
To respond to future residential intensification, Clarington must be creative with its parks
and outdoor spaces and seek new ways of doing things to bring new life to these public
areas. There may be opportunities to make strategic investments to key parks serving
these areas to intensify the use of parks by adding new features, renewing aging
recreation facilities, or repurposing underutilized spaces to accommodate uses that are
in demand. For example, the Municipality had previously repurposed a sports field with
Clarington’s first cricket field at Courtice Memorial Park . Clarington is also in the process
of designing three refrigerated outdoor skating surfaces at major parks in each of the
Municipality’s urban areas.
A Park Renewal Strategy should be prepared to identify opportunities to: renew parks to
replace aging components (e.g., like for like), redevelop to replace and/or repurpose
amenities to ensure they serve evolving community needs, and plan for park
enhancements to add new amenities. Candidate parks for renewal should consider
factors including, but not limited to, the age and condition of the park and components
within the park, changing demographics, opportunities to minimize service duplication,
proximity to intensification areas serving MTSAs, opportunities to be repurposed spaces
to address other in-demand outdoor recreation opportunities, and other variables.
Targeted public consultation should form part of the renewal and re-imaging process.
Opportunities that should be considered include (but are not be limited to):
a) Enhancing or renewing existing parks, public spaces, and streetscapes;
b) Developing parks with urban qualities (e.g., urban parks, urban squares, etc.)
that are built to higher design standards and that integrate multi-functional
spaces and public art;
c) Improving pedestrian connectivity and access to nearby parks and facilities;
Clarington Arms Parkette
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d) Promoting innovation and excellence in park design such as incorporating
accessibility features, public art, and environmentally friendly materials; and
e) Making use of less conventional spaces (e.g., streets, parking lots, cemeteries,
greyfield sites, etc.), including opportunities through partnerships, strata parks,
and privately owned public space (POPS).
Accessibility and Inclusion in Parks
Accessibility and inclusivity are an important part of park design. Parks are typically a
place for all that the Municipality should strive to achieve, thus facilitating access for
people of all ages, diverse socio-cultural backgrounds, and persons with disabilities and
special needs. Not all parks or areas within them are appropriate for universally
accessible infrastructure (e.g. ecologically sensitive or naturalized zones), however,
community-focused spaces should consider the ability of all residents to access them.
Clarington’s parks system presents an excellent opportunity to exemplify the
Municipality’s commitment to providing opportunities for residents of many backgrounds
and abilities to experience and enjoy outdoor public spaces. Clarington’s parks can be
used to:
a) Introduce affordable activities to people who may not otherwise have the means
to participate in sports or events;
b) Provide access and opportunities for able-bodied and differently-abled residents
to connect with the outdoors by developing parks in accordance with accessible
design standards;
c) Provide multi-generational experiences that benefit residents of all ages;
d) Recognize the interests of people from various backgrounds through their ability
to host community special events and festivals (including performing arts) and
recreation activities and sports;
e) Provide unstructured areas in parks for picnicking and social gatherings; and
f) Promote the Municipality’s commitment to providing safe and tolerant spaces for
all residents to feel welcome.
Clarington should continue to focus on creating inclusive, multi-use parks that offer a
range of park-based components for all residents whether it be for sports fields, non-
programmed spaces and amenities (e.g. shade structures) for social activities such as
chess, open fields or outdoor fitness infrastructure for yoga or “boot camps”, as well as
attractive features such as gardens and landscaped areas.
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Other considerations should be undertaken to create more inclusive and accessible
parks such as looking at Clarington’s parks system with an equity lens and enhancing
access to new parks, or investing in existing parks, that serve areas with higher social
needs. Research across North America finds that neighbourhoods experiencing above
average levels of marginalization – whether based on income, racialized status, or other
social determinants of health – often have less access to parks than areas that are
more affluent.
Minimizing physical barriers within parks should also be undertaken to increase park
use for persons with disabilities. This may include , but not be limited to, ensuring that
parks have firm and stable walking surfaces, not only for circulation within the park, but
to connect users to on-site features such as playgrounds and sports fields. The addition
of comfort amenities such as seating and shade, should also be integrated where
appropriate. This Master Plan also recommends the development of an Accessible
Playground Distribution Strategy to guide the selection of suitable sites for enhanced
accessibility features for playgrounds (e.g., rubberized surface, inclusive play
components, etc.); please refer to Section 4.21.
Climate Change Resiliency and Environmental Sustainability
Clarington declared a climate change emergency in 2020,
which aligns with public perceptions as national polling
conducted in 2023 found that climate change was identified
as one of the most important issues facing Canadians.
Clarington’s 2024-27 Strategic Plan identifies that the
Municipality will “be a leader in anticipating and addressing
the impacts of climate change”. To achieve this, the Strategic
Plan identifies actions that include, but are not limited to, the
following:
• Continue to implement the Clarington Corporate
Climate Action Plan (CCAP);
• Develop and launch a community outreach and
education program to identify community climate
mitigation measures;
• Establish a Municipal Climate Action Reserve Fund
and Municipal Climate Resilience Reserve Fund; and
• Advocate for provincial and federal legislation,
regulation and policy changes that are aimed at
reducing carbon emissions.
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Parks and open spaces play a key role in climate change mitigation, resiliency, and
adaptation, as well as environmental sustainability. For example, incorporating shade
structures and outdoor aquatic features/facilities to help residents cool down during hot
summer days is a best practice in many communities. Green infrastructure can also be
incorporated into parks such as pollinator gardens, tree plantings, community gardens,
natural playgrounds, bio swales, permeable surfaces, shoreline restoration, drin king
fountains, and the development of active transportation infrastructure, as well as low
maintenance, passive greenspaces. Many of these examples are found in Clarington,
which help minimize the impact of climate change. Clarington’s community facilities are
also being designed and constructed to be low carbon or net carbon neutral to achieve
the Municipality’s goal reducing corporate greenhouse gas emissions by 35% by 2030
and achieve net-zero emissions by 2050.
The above noted strategies align with the actions contained in Clarington’s CCAP. Given
the importance of climate change mitigation and the Municipality’s commitment to
addressing it, the development and redevelopment of parks and community facilities
should align with the CCAP’s actions. There may be higher costs associated with
providing low carbon or net carbon neutral facilities, particularly through retrofitting older
facilities that were not originally designed to accommodate newer technologies or
incorporating features with parks (such as installing and operating recirculating systems
for splash pads). As a result, cost implications will need to be considered as part of the
planning process and additional funding may be required through the Municipality or
through external sources, including senior levels of government (including grants) and
community partners.
Environmental Stewardship and Naturalization
Municipalities are placing a greater emphasis on
passive open space (e.g., woodlots, prairie
grasslands, flower gardens, etc.), often ensuring that
portions of new or redeveloped open space remain in
a natural state. Naturalization typically involves
reduced grass cutting, planting of native species, and
public education to create awareness in the
community (e.g. interpretative signage).
Some communities have partnered with conservation
authorities, community organizations, and others to
introduce environmental and naturalization initiatives into the parks system. Other
municipalities have found ways to incorporate green infrastructure and strategies to be
more resilient to climate change within their parks such as increasing tree coverage
within parks to increase the overall tree canopy and providing shade, creating
community allotment and pollinator gardens, creating outdoor classrooms, m inimizing
the use of impervious surfaces, and more. Opportunities to enhance and promote
Orono Park
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environmental sustainability opportunities and naturalization within the park system
should be pursued, potentially in collaboration with others such as conservation
authorities, community groups, and others.
Comfort Features and Park Safety
Parks that offer attractive and comfortable
experiences are more likely to be successful in
encouraging people to use them and attract a broad
range of activities. Once inside a park, park users
often look for convenience and comfort-based
features depending upon their intended use. Through
Master Plan consultations, it was revealed that
residents are seeking amenities such as treed areas
and shade structures, seating, picnic tables,
washrooms (either permanent or temporary), lighting,
and parking (for vehicles and bicycles).
These types of features make parks more comfortable and welcoming. Recognizing that
there is an inherent cost to providing these amenities, municipal investment may be
strategically directed to parks based on their intended function, particularly if parks
feature permitted sports facilities or are used for special events and gatherings. For
example, Municipal Wide and Community Parks may offer a greater range of amenities
such as permanent or temporary washrooms, and parking. It may also be more cost
effective to plant more trees, and support the Municipality’s climate change goals, rather
than building shade structures, although the benefits of natural shade may not be
achieved until trees have matured.
Parks are being designed with patrons’ safety in mind through the application of CPTED
(Crime Prevention Through Environmental Design) and other design principles.
Clarington’s high-traffic parks should minimize areas with low visibility and
neighbourhood level parks should be designed so that there are “eyes on the park” from
the street and nearby residences to discourage undesirable activities. Maintenance of
parks and open spaces is accepted in the industry as a key component of perceived
“safety” in parks and in deterring inappropriate behaviour. Many municipalities engage
their local emergency services agencies, including police and fire departments, to aid in
their design of safe parks, which is encouraged in Clarington .
Tooley’s Mill Park
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Recommendations
10. Prepare a Park Renewal Strategy to identify opportunities to: renew parks to
replace aging components (e.g., like for like), redevelop to replace and/or
repurpose amenities ensure they serve evolving community needs, and plan for
park enhancements to add new amenities. Candidate parks should consider the
age and condition of the park and components, changing demographics,
opportunities to minimize service duplication, proximity to intensification areas
serving MTSAs, opportunities to be repurposed under-utilized facilities to
address other in-demand outdoor recreation opportunities, and other variables.
Park renewal should be supported by community consultation.
11. Work with the Clarington Diversity Advisory Committee, Clarington Accessibility
Advisory Committee, and other relevant groups to actively identify and
implement inclusive park design for all age groups and abilities, including
development of an Accessible Playground Distribution Strategy as outlined in
this Master Plan.
12. Design new and redeveloped parks with a climate change lens with regard for
guiding frameworks such as the Clarington Corporate Climate Action Plan to
achieve the Municipality’s goal of reducing greenhouse gas emissions by 35%
by 2030 and net-zero emissions by 2050.
13. Develop and renew parks with a focus on safety, incorporating Crime Prevention
Through Environmental Design principles, enhancing naturalization efforts and
including comfort amenities like shade, seating, signage, and other features to
create inviting and welcoming spaces.
14. Collaborate with conservation authorities, community groups, and corporate
departments to develop and implement strategies that enhance and promote
environmental sustainability initiatives and naturalization in Clarington's parks
and open spaces.
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3.7 Recreation Trails
Existing Recreation Trails
Clarington provides recreational trails for low impact physical activity and active
movement throughout the Municipality for walking, cycling, jogging, in -line skating and
roller blading, cross-country skiing, snowshoeing, and other human-powered forms of
transportation. There are approximately 50 kilometres of asphalt, gravel and natural
recreational trails in Clarington that are primarily found within the Municipality’s parks,
open space, and natural area system, as well as along roadways. Key trail routes
include:
• The Clarington Waterfront Trail spans nearly 63 kilometres along asphalt paths
and roadways and forms part of the Great Lakes Waterfront Trail that connects
multiple municipalities along the Lake Ontario shoreline. The Clarington portion
consists of both on-road and off-road sections connecting to Darlington Provincial
Park in the west and extending eastwards past Port Darlington West and East
Beaches and through the Port of Newcastle.
• The Bowmanville Valley Trail is a 3.4 kilometre asphalt trail that runs along the
west side of Bowmanville Creek in a north-south direction from Roenigk Drive to
Baseline Road where it connects to the Waterfront Trail. Connections are
available to Rotary Park, Nelson Street Parkette and Spry Avenue.
• The Courtice Millennium Trail is a gravel trail spanning 1.6 kilometres with
access points at Nash Road, Trulls Road, and Highway 2 with connections to the
Courtice Community Complex and Courtice High School.
• Farewell Creek Trail extends approximately 600 metres from Tooley’s Mill Park
to the south with future plans to extend the trail route to Darlington Boulevard.
• The Sidney Rutherford Trail is a gravel pathway located in Orono and can be
accessed at the intersection of Main Street and Mill Street, spanning 400 metres
to the southernly access point on Main Street.
• The Soper Creek Trail can be accessed at Madden Place in the north, running
3.3 kilometres south along the west side of Soper Creek to Simpson Avenue. The
asphalt trail can be accessed at Guildwood Drive, Concession Street, Mearns
Avenue, Hailey Court, Wilde Court, Hobbs Drive, and Soper Court, and connects
to the Visual Arts Centre and Soper Creek Park.
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The Municipality is currently in the process of planning, designing, or developing
additional trails, or expanding existing trails, including, but not limited to, Courtice Dog
Park Trail, Toyota Trail, Farewell Creek Trail, and Soper Creek Trail, as well as
pathways to facilitate internal movement at Burketon Park, Harvey Jackson Park,
Hayden Hall Parkette, and Ina Brown Parkette. These off-road trails are complemented
by the boarder sidewalk system.
There are also a number of trails located on lands owned by the Central Lake Ontario
Conservation Authority, Orono Crown Land Trust, and others, as well as major on road
routes such as the Greenbelt Route (Oak Ridges Moraine Trail).
Market Conditions
Recreational trails are commonly identified as one of the most
desirable features in a community, lending support for the
Municipality’s past and planned investments in the trail
network. A strong trails system provides countless
environmental benefits, promotes physical activity, connects
people to nature, enables unstructured and affordable
recreation opportunities, and contributes to the development of
a sustainable transportation system. Research has also shown
that recreation trails heighten community vibrancy by
encouraging the development of walkable neighbourhoods
where people are more likely to socialize and interact with each
other. Through these benefits, Clarington’s trails contribute to
an improved quality of life for its residents.
The Municipality’s 2016 Clarington Transportation Master Plan
(CTMP) provides a long-term strategy for the development
transportation infrastructure and policy for all modes of
transportation over a 20-year period, including active forms of
movement on and off-road. The CTMP recommended over 73
kilometres of multi-use pathways, cycling lanes, and
signed/shared lanes within Courtice, Bowmanville , and
Newcastle, as well as connections between these urban areas. Clarington is currently
updating its Active Transportation Master Plan (ATMP) to establish a new vision for
on-road walking and cycling infrastructure and a Wayfinding System Strategy is being
completed alongside the ATMP to bring greater awareness to Clarington’s active
transportation network.
Port Darlington Park East Beach
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Clarington’s Official Plan supports the development of a connected trail network and
supporting policies are contained in Section 18.4. Notable policies include:
• The Municipality will seek to develop an integrated trail network. Wherever
possible, the trail network system should be accessible to all and contribute to
an age and child friendly community.
• The Municipality will support the integration of its trails with other partner
agencies to create a seamless trail network.
• The trail network shall be designed to minimize impacts on the natural heritage
system.
• The Municipality will establish a continuous Waterfront Trail for such purposes as
walking and cycling along the Lake Ontario Waterfront. From Courtice to
Newcastle, the Municipality intends to relocate and improve the alignment of the
Waterfront Trail to areas along the water ’s edge where possible. The Waterfront
Trail shall connect, wherever reasonably practicable, to other trails, corridors and
natural areas within the Municipality and adjacent municipalities.
• The Municipality will develop a trails network implementation plan to design,
finance and construct extensions to the existing trail network and to connect
Clarington’s communities and neighbourhoods.
The Master Plan consultation process revealed that trails are highly valued in
Clarington. The community survey found that two -thirds (66%) of respondents have
been walking or hiking for leisure in the past five years; 84% and 76% of respondents
supported investment in paved multi-use trails and unpaved nature trails, respectively,
which were within the top five most popular parks and recreation facilities. Public input
also expressed that there was a desire to strengthen linkages throughout Clarington
and connect features, including valleylands, major parks, and the waterfront.
Suggestions were made for a continuous looped trail around Bowmanville called a
“circle of green.” Better clarity of where trails are located was identified so users are
aware of what is available in the community. Enhanced trail maintenance strategies
were also suggested such as reduced grass cutting and naturalization efforts.
Additionally, environmentally friendly winter maintenance practices were suggested,
particularly in sensitive areas.
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Continued Recreation Trail Development
During the COVID-19 pandemic, many municipalities,
including Clarington, experienced a strong increase in trail
usage, highlighting the importance of a connected trail
network. The Municipality recognizes the importance of this,
as demonstrated through its recent and planned trail
investments. At the conceptual level, the Master Plan
investigated potential trail routes and linkages to build upon
the existing network; it also aligns with other guiding
documents, including the trail guidance illustrated on Map K
of the Clarington Official Plan and the candidate on-road
network prepared through the Draft Active Transportation
Master Plan (subject to change) to ensure seamless
connectivity. A focus was given to strengthening connections
within and to other urban areas, linking users to key
destinations (e.g., waterfront, major parks, community
facilities, main roads, etc.), and developing linkages in areas where future population
growth is expected (e.g., Secondary Plan Areas).
The conceptual network developed through this Master Plan is intended to be used as a
starting point to identify new trail routes that should be explored as opportunities
become available over the planning period and beyond (Figure 7). The conceptual
network was developed based on the feedback received from the public and the desire
to strengthen linkages across the Municipality. They should not be interpreted as
detailed routing, but they illustrate desired connections to destinations (e.g., urban
areas, hamlets, etc.) and other existing trails.
The Municipality will be required to work with others , including landowners, agencies,
and senior levels of government as it is recognized that it would not be feasible for the
Municipality to acquire contiguous parcels of land on its own. In some instances, the
Municipality may be able to acquire land for trails or receive land dedication for trails
through the development process. The Municipality may also be able to negotiate public
access to non-municipally owned lands.
As future residential development occurs within Clarington’s Secondary Plan Areas, it
will be important for the Municipality to investigate recreational trail development
opportunities and sidewalks to support active transportation modes. While new trail
development in established urban areas is often a challenge, there may be
opportunities to expand on trails within greenways, forests, and valleys. Emphasis
should be placed on ensuring that there are walking pathways within parks to provide
accessible circulation areas and linkages to internal amenities (e.g., playgrounds, sports
facilities, etc.), particularly within older parks as designated internal walking routes ha ve
been a standard design practice for the Municipality’s new and redeveloped parks.
Rotary Park
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Other trail design and comfort features should be considered in appropriate areas,
including (but not limited to), wayfinding and signage, seating, shade, parking,
washrooms, distance markers, and other amenities to support and encourage trail use ;
additional best practices in design are highlighted in Section 3.6.
Long-term strategies to establish safe connections to the rural areas and hamlets
should be explored. These routes may primarily be located on -road and as a result,
consideration will need to be given to Clarington’s Active Transportation Master Plan.
Working with others will be required to ensure seamless trail connectivity, which may
include, but not be limited to, Durham Region and the Central Lake Ontario
Conservation Authority.
Promoting the use of recreation trails in Clarington is strongly supported by the Master
Plan to encourage outdoor physical activity and attract families. Clarington’s Wayfinding
System Strategy, which is being developed as part of the Active Transportation Master
Plan, will help in this regard to bring greater awareness to the Municipality’s trails
through signs, route maps, accessibility, and other resour ces.
Winter Trail Maintenance
Since the pandemic, Clarington has experienced increased demand for recreational trail
use during the winter months and requests for snow clearing. This is a trend being
experienced in other municipalities as communities have seen an increased demand for
year-round, outdoor physical activities, including winter trail use. Clarington provides
snow clearing along sidewalks and some walkways and to respond to community
requests, the Municipality provided snow removal services along nearly 8 kilometres of
trails, which was expanded to almost 10 kilometres of trail.
The Municipality’s snow removal efforts are beneficial for supporting and encouraging
physical activity opportunities and while there are inherent costs associated with winter
maintenance, the availability of no-cost activities throughout the year is a ben efit to the
community and encourages equitable access to Clarington’s parks and trails.
Continuing to expand winter trail maintenance is encouraged in strategic areas, such as
along the waterfront or at Bowmanville Park on the former Zoo Lands. Where possible,
alternatives to using road salt and being Smart About Salt Certified are encouraged
particularly when it comes to winter trail maintenance, which aligns with the
Municipality’s Corporate Climate Action Plan.
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Recommendations
15. Use the conceptual network in this Master Plan to guide the future development
of recreational trails in Clarington. Key strategies to strengthen the trail network
and to promote active movement within the Municipality include :
a. Work with community partners and landowners, agencies, and other levels of
government to improve connectivity within and between settlement areas,
including north-south connections between the Waterfront Trail, Greenbelt
Trail, Oak Ridges Moraine Trail, and Bowmanville Valley Trail to encourage
active transportation and expand the trail network. This should include creating
a “circle of green” trail around Bowmanville, developing solutions to overcome
barriers, including crossing transportation corridors, including Highway 401 and
Highway 418, as well as other roadways.
b. Establish active transportation routes within future residential areas ,
particularly in Secondary Plan Areas with connections to the existing network.
c. Design new and redeveloped parks with designated circulation areas to guide
users through parks and public spaces and connect to on-site amenities (e.g.,
playgrounds, sports fields, etc.).
d. Incorporate trail design features and comfort amenities in appropriate areas to
enhance comfort including, but not limited to, signage, seating, shade, drinking
fountains/bottle filling stations, bicycle parking, and accessibility features.
e. Increase winter snow clearing in strategic areas to encourage year-round
physical activity. Appropriate staffing levels will be required to support this
initiative as well as training , such as being Smart About Salt Certified, as
directed by the Municipality’s Corporate Climate Action Plan . Evaluating the
feasibility of using salt alternatives is also recommended.
f. Have regard for the Municipality’s Active Transportation Master Plan and
Wayfinding System Strategy to ensure seamless connectivity between off-road
and on-road routes and bring greater awareness and promote the use of
Clarington’s trail system.
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Figure 7: Conceptual Trail Network
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3.8 Aligning with the Clarington Waterfront Strategy
Clarington’s waterfront is a highly valued community asset and an important part of the
Municipality’s parks system. While there are 34 kilometres of shoreline along
Clarington’s southern boundary, the Municipality owns a small proportion of waterfront
properties, including Port Darlington Waterfront Park (East and West Beach) and Bond
Head Parkette. Other properties are privately held or are owned by other public entities
such as the Province of Ontario, Government of Canada, and Central Lake Ontario
Conservation Authority. The Municipality recognizes the importance of the waterfront
and has taken steps to invest in these key assets to create high quality experiences for
residents and tourists. Development of Clarington’s waterfront has historically been
guided by the 1992 Waterfront Strategy that established a vision for increasing public
access and ownership of the shoreline.
Input received through the Master Plan’s consultation process reinforced the importance
of the Municipality’s waterfront areas. The waterfront was commonly identified as one of
Clarington’s greatest natural assets that is enjoyed by both residents and regional
visitors; nearly two-thirds (63%) of community survey respondents identified that they
have visited the waterfront in the past five years. There is continued support for public
investment along the waterfront as 85% of survey respondents were in favour of
additional public support for waterfront enhancements, which was the top priority among
41 facility types. Public input emphasized the need to preserve and enhance the
strengths of the waterfront such as the open spaces and trails. Suggested
improvements expressed by the community included :
• Building upon the trail network, including connections to existing trail systems
and the greater active transportation system, as well as public waterfront access
points (particularly in Courtice).
• Space for picnics and special events, cultural activities such as performing arts,
outdoor skating, personal watercraft launch, public art, and parking.
• A greater commercial presence such as retail and restaurants.
The Municipality is currently undertaking a comprehensive update of the Waterfront
Strategy to create a waterfront vision that incorporates themes related to sustainability
and resilience, barrier free access, and high-quality built form and parks. A key focus of
the updated Waterfront Strategy is on key waterfront locations in Bowmanville,
Newcastle, and Courtice. As the Waterfront Strategy is updated, consideration should
be given to the input received from consultation activities and the recommendations
identified through this Master Plan, including amenities such as outdoor fitness
equipment, playgrounds, and other features such as shade, seating and other park
design elements. An emphasis should be placed on creating new and existing ideas,
including strategies to create multi-use opportunities to maximize strategic uses along
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the waterfront for people of all ages and abilities, while recognizing the sensitivity of
natural areas and the need to preserve and protect the environment.
Key considerations for updated Waterfront Strategy include:
• Evaluate the feasibility of providing special events along the waterfront (e.g.,
music or movies at the waterfront).
• Build upon existing multi-use waterfront trails and ensure connectivity to the
Municipal-wide active transportation network and trails in adjacent municipalities.
• Explore opportunities to create or designate space for an outdoor amphitheater
for performing arts and cultural activities, and other rentals.
• Consider high quality park and waterfront design to strengthen user experiences
that may include, but not be limited to, seating, signage, shade, lighting,
washrooms, accessibility, parking, and other comfort features and supporting
amenities.
• Identify strategic locations for picnic areas, outdoor fitness equipment,
playgrounds, water activities such as launching personal watercrafts , and other
amenities to encourage use and tourism.
• As opportunities emerge, secure waterfront property either through purchase or
other agreements such as long-term leases to increase public access to the
waterfront.
• Support local economic development opportunities such as retail and restaurants
in strategic areas in proximity to the waterfront.
• Preserve and protect environmentally sensitive areas such as the Samuel Wilmot
Nature Area.
Recommendations
16. Update Clarington’s Waterfront Strategy to have regard for the input received
and the guidance put forward through this Master Plan, including preserving
environmentally sensitive areas such as the Samuel Wilmot Nature Area and
undertaking enhancements to encourage greater passive uses along the
waterfront, including economic development opportunities, comfort features, and
supporting amenities.
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4. Facilities Plan
This section provides the Municipality with guidance on enhancing existing and
developing new community facilities for recreation, culture, libraries, museums and
archives to address service gaps, respond to evolving interests, or to address growing
community needs.
This section analyzes facility needs over the planning period and recommendations are
identified at the end of each sub-section. It is important to note that recommendations
are not based upon one specific factor, but considers a number of factors, including
background documents and plans, population and demographic characteristics (e.g.,
age, income, etc.), trends and best practices, inventory and distribution, facility
utilization and program data, and service level targets (see Figure 8). Details on
background inputs can be found in the Background and Existing Conditions Summary
Report.
Figure 8: Key Factors in Analyzing Facility Needs
Comparisons with other municipalities is another factor to consider (Appendix C),
although it is important to recognize that provision models differ in other communities
due to the local context. For example, Clarington’s large geographic land base and
growth patterns (which are focused in three urban areas) are different from more
concentrated municipalities. Clarington’s large geograph ic area also requires the need
to provide a higher level of service compared to other municipalities to ensure that the
distribution and availability of facilities is equitable and is positioned to serve growth
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areas. As a result, comparisons with other communities should be interpreted with
caution as there can be different factors at play in each municipality.
Recommendations are also supported by community input that was received through
the consultation process. Key findings are highlighted in Section 2 of this Master Plan
and additional details are contained in the Community Engagement Summary Report.
The community engagement process was critical to understand the public’s opinions
and priorities. For example, from a facility perspective, the highest level of support for
additional public investment was for indoor pools, outdoor skating, playgrounds, fitness
centres, and indoor artificial turf fields (investment in the waterfront, trails, and acquiring
parks were also highly rated). All community engagement tactics were considered with
the other factors to identify needs over the planning period.
Recommendations also take into consideration assumptions such as population and
age group growth. Population assumptions align with the Region of Durham Envision
Durham Adopted Official Plan. It will be important for the Municipality to re -evaluate the
implications on recommendations once new population data is available such as the
2026 Census, potentially as part of a recommended five -year Master Plan update (See
Recommendation #99). Assumptions have also been made regarding projected
participation numbers for sports organizations. Regularly collecting this information at
the time of registration and space allocation should be a normal practice to better gauge
needs and to track trends in participation by sports/age groups (See Recommendation
#97).
Based on the analysis, a range of indoor and outdoor facilities were identified to
address current and future needs. Table 9 summarizes the current supply of indoor and
outdoor facilities, the total supply required by 2036, and what is needed to meet
recommended service levels.
South Courtice Arena
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Table 9: Future Facility Needs by Type Based on Needs Analysis
Current Facility
Supply
2036 Facility Supply
Requirements Additional Facility Needs
Arenas 5 7 +2
Indoor Aquatic Centres 3 4 +1
Indoor Walking Tracks 1 2 +1
Gymnasiums 3 3 0
Multi-Purpose Space /
Group Fitness Space 31 32 +1
Dedicated Youth and
Older Adult Spaces 4 4 0
Squash Courts 2 2 0
Indoor Artificial Turf Fields 1 1 0
Outdoor Rectangular
Fields
50 unlit equivalent
fields
81.5 unlit equivalent
fields
+31.5 unlit fields or 21 lit
fields
Ball Diamonds 37 unlit equivalent
diamonds
54 unlit equivalent
diamonds
+17 unlit equivalent
diamonds or 11 lit diamonds
Cricket Fields 1 1 +1 (Replace field at
Courtice Memorial Park)
Tennis Courts 15 32 +17
Pickleball Courts 12 32 +20
Basketball Courts 22 32 +10
Splash Pads 16 30 +14
Skate Parks and Pump
Tracks 5 5 0
Skate Zones 0 5 +5
Leash Free Dog Parks 3 4 +1
Compact Leash Free Dog
Parks 0 2 +2
Community Garden 3 3 +1 (Replace Bowmanville
Allotment Gardens)
Playgrounds 63 93 +30
Outdoor Fitness
Equipment 2 6 +4
Refrigerated Outdoor
Skating Surface 3 3 0
Outdoor Lacrosse Box 1 1 0
Arts and Culture Facilities Various n/a +1
Library Space 4 Branches
(47,704 sq. ft. feet)
80,004 sq. ft. plus a
bookmobile.
32,300 sq. ft. plus a
bookmobile
Museum and Archive
Space 3 3 0
Includes components to be included as part of the South Bowmanville Recreation Centre and other ongoing capital
projects.
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4.1 Arenas
Current Supply
Clarington provides five ice pads across three
different locations. Twin ice pads are located at the
Garnet B. Rickard Recreation Complex (NHL size)
and the South Courtice Arena (one NHL size and one
Olympic size), and a single ice pad is located at the
Darlington Sports Centre. In addition to th is arena
supply, the Municipality owns two additional ice pads
at the Orono Arena and Community Centre and
Newcastle Memorial Arena, which are both operated
by independent arena boards; the Municipality
currently has no authority over ice allocation at these
two locations. As a result, there are a total of seven
ice pads in Clarington, resulting in a service level of
one per 15,537 residents, which is higher compared to
the benchmark average of one per 24,119 residents.
Market Conditions
Hockey Canada and Skate Canada report that registration in minor hockey has been
steadily declining since 2009. While there was a slight uptick in the number of
participants for the 2018/2019 season , participation in the sport was also impacted by
the COVID-19 pandemic. Key factors impacting arena use include the following:
• The financial commitment associated with ice activities is increasing due to the
high cost of renting ice, equipment and travel.
• The province’s population growth is driven by immigration and newcomers are
arriving from countries that do not have strong ice sport programs (e.g., Asian,
Caribbean and South American nations) or are not familiar with arena activities.4
4 Urciuoli, A. (2020). Fewer Canadians are playing hockey, but does it matter? Retrieved from
https://quickbitenews.com/
Garnet B. Rickard Recreation Complex
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Use of Arenas in Clarington is Strong
Between the 2022/2023 and 2023/2024 ice seasons, system-wide arena utilization
increased from 87% to 91% during the prime -time period (excluding board-operated
arenas), which is a strong level of usage (Figure 9). The Municipality has historically
maintained arena utilization levels of over 90% as the 2017 Indoor Facilities
Development Strategy found that arena utilization ranged between 91% and 93%
(Figure 10). A utilization level of 90% or over is indicative of an arena system that is
operating at or near full capacity. For the 2023/2024 arena season:
• The prime-time utilization rate during the weekday was 95%, which was an
increase from 90% from the 2022/2023 season.
• The prime-time utilization rate during the weekend was 88%, which was a growth
from 85% from the previous season.
• Ice Pad #1 at the Garnet B. Rickard Recreation Complex had the highest
utilization level at 96%. Conversely, Ice Pad #2 at the same facility had the
lowest utilization level at 88%.
• The majority of unused prime-time ice is available during the late weeknight
period after 10 pm or during the weekends after 9 pm, which are generally not
ideal for use by minor organizations due to the nature of their programming.
Clarington does not have any ability to influence how ice time is allocated at board -
operated arenas in Orono or Newcastle. A review of online ice schedules for both
arenas found that they appear well used, primarily by minor user groups. The Newcastle
Memorial Arena is generally booked at or near capacity during the prime-time period
and limited time is available at the Orono Arena.
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Figure 9: Prime Time Arena Utilization Rate, 2023/2024 Season
Figure 10: Historical System-Wide Arena Utilization Rates during Prime Time
Note: Data not available for 2016/2017 to 2021/2022 season. 2022/2023 season excludes programming
data. Utilization excludes board-operated arenas in Orono and Newcastle.
Arena users requested more ice time for their programming as demand for ice sports
grows within the community. It was indicated that the existing South Courtice arena was
designed to be expanded to accommodate 2 additional ice pads . The community survey
found that 41% of responding households participated in ice activities, while 68% of
respondents supported additional investment towards arenas, which ranked 13 th among
41 facility types.
90%90%
93%
96%
88%
91%
South Courtice
Arena #1
South Courtice
Arena #2
Darlington
Sports
Centre
Garnet B. Rickard
Recreation
Complex #1
Garnet B. Rickard
Recreation
Complex #2
Arena Utilization Rate System Wide Utilization Rate
92%92%93%
91%
93%92%
87%
91%
2010/11 2011/12 2012/13 2013/14 2014/15 2015/16 2022/23 2023/24
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Determining Future Ice Pad Needs
To guide ice pad needs, the 2017 Indoor Facilities Development Strategy (IFDS)
recommended a provision target of one per 700 to 750 minor and adult participants. The
Municipality’s participation data reported that for the 2023/2024 season, there were
2,550 minor hockey and skating participants using Clarington’s five municipally
operated ice pads (excludes groups that exclusively use board-operated arenas in
Orono and Newcastle), resulting in current service level of one ice pad per 512 minor
participants. Fulsome data on adult leagues is not available and as a result, the use of
the Municipality’s historical provision target, that combines minor and adult participants,
cannot be used. A target of one ice pad per 450 to 500 minor participants is used in
other municipalities where youth use most prime-time ice, with adults using late-prime
time and shoulder hours.
A target of one ice pad per 500 minor participants is recommended for Clarington, which
is on the lower end of the spectrum compared to other municipal targets, although it
aligns with the Municipality’s current service level and utilization. This target would
suggest that at present, Clarington has very modest capacity to accommodate
additional use of approximately 0.1 ice pads. This aligns with the current user profile as
several user groups reported that they are booking time in adjacent municipalities to
alleviate pressure they are facing to accommodate participation levels and programming
needs.
The current number of minor hockey and skating participants represents approximately
12% of the children and youth population. If capture rates for minor players remain
unchanged, Clarington is roughly estimated at 3,813 minor players (ages 5 to 19) by
2036. Based on the recommended target, this would translate into a need for
seven ice pads, two more than what is currently provided directly by the
Municipality (Table 10). This is consistent with findings from the Municipality’s previous
study, which confirms the need for ice to accommodate the needs of growing
organizations and public programming. While this analysis excludes groups using the
two board-operated arenas in Orono and Newcastle, arena schedules at these locations
suggest that both locations are at or near capacity and thus, some future growth of
these groups could also be accommodated if the Municipality were to develop additional
ice pads.
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Table 10: Projected Ice Pad Needs, 2026 to 2036
2026 2031 2036
Projected Minor Registration
(Based on current minor capture rates) 2,901 3,376 3,813
Number of Ice Pads Required
(Based on 1 ice pad per 500 players) 5.8 6.8 7.6
Ice Pads Needed
(Based on a supply of 5 municipally operated ice pads) 0.8 1.8 2.6
Note: Projected registration figures exclude organizations that exclusively use board -operated arenas in
Orono and Newcastle.
Planning for a New Arena
With a projected need for two additional ice pads over the planning period, co -locating
them together is recommended as it would achieve benefits in programming , including
tournament potential and efficiencies with construction and operations, as well as in the
provision of supporting amenities. Regulation NHL-size pads are recommended with
change rooms, spectator seating, viewing areas, audio and visual equipment, and
accessibility features, and other amenities, as necessary.
The preferred option is to locate the two new ice pads as an expansion of the South
Courtice Arena. This location already has two ice pads, and it was originally designed
with the intent to accommodate additional ice pads, so some required infrastructure
already exists. Creating a quad-pad arena at this location would provide the Municipality
with operating efficiencies and programming benefits, particularly when it comes to
tournament hosting potential, which is further bolstered by its proximity to Highwa y 401.
The recommended site at the South Courtice Arena is a departure from the preferred
option in the 2017 IFDS, which identified the South Bowmanville Recreation Centre as
the preferred location due to the availability of land, ability to address long -term ice
needs in Bowmanville, and ability to be co-located with other facility components. The
Municipality is currently in the design phase of the South Bowmanville Recrea tion
Centre, which will include a FIFA size indoor artificial turf field, double gymnasium and
multi-purpose program rooms and other spaces. Based on the planned facility design
and consideration for other facility components that would form part of a n expansion,
which are supported by this Master Plan, facility fit investigations completed by the
Municipality determined that a twin pad arena could not be accommodated on site.
In terms of timing, expanding the South Courtice Arena with two additional ice pads
would not be required until beyond 2031, which aligns with the timing identified in the
2017 IFDS, although an earlier timeframe could be contemplated to absorb usage from
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other arenas, including the Darlington Sports Centre as the Municipality will need to
plan for reinvestment or replacement of this location over the long term.
Over the short-term, continuing to maximize the use of available ice time is
recommended to meet local ice needs, including working with independent arena
boards. The Municipality may also engage adjacent communities with available ice
supply to negotiate access to suitable arena time; it is known that there is available
arena capacity in Oshawa and some Clarington users already book time in this
community.
The Municipality should approach the development of new ice pads cautiously given
that while the local arena system is experiencing pressure, Provincial trends suggest
that arena demand is waning as evidenced by surplus ice capacity in other
municipalities. Reconfirming ice pad needs ideally as part of a five-year update to this
Master Plan is recommended based on participation data, facility utilization, sport
trends, and population growth, including changes in socio-demographic characteristics
such as growth in age cohorts and cultural diversity. Undertaking a preliminary design
should also be completed to confirm facility fit at the South Courtice Arena, including the
provision of ancillary space such as changerooms and parking. Should it be determined
that it would not be feasible to expand the South Courtice Arena, locating two ice pads
at the Diane Hamre Recreation Complex should be explored as it was originally
designed to accommodate two ice pads and there is land available.
Reinvestment in Existing Arenas
The Municipality recently completed a major renovation at the board -operated
Newcastle Memorial Arena, which included replacing aging lifecycle components such
as the arena floor, refrigeration equipment, rink boards, etc. A similar renovation project
is currently being undertaken at the Orono Arena and Community Centre to renew the
aging ice pad to extend the life of both locations by 10 to 15 years.
Continued investment in Clarington’s arenas is recommended to maintai n a state of
good repair. This will be important at the Darlington Sports Centre. This single pad
arena was constructed in 1975 and in 2010, a major renovation was undertaken to
replace the arena floor and refrigeration equipment and rink boards; a lobby renovation
and accessibility enhancements were also completed. These upgrades were intended
to extend the life of the arena to 2025; however, the arena is expected to remain fully
operational beyond this period. Ongoing monitoring of its facility condition, potentially
supported by an engineering study, will provide the staff with an understanding of
remaining facility lifespan to make an informed decision related to the future of this
arena, which could be determined through a five -year update to this Master Plan.
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Recommendations
17. Develop 2 new ice pads as an expansion to the Courtice Arena. Confirmation of
the timing and associated amenities should align with the five-year update to the
Master Plan and be based on user group participation, ice pad utilization, sport
trends, and population growth, including changes in socio -demographic
characteristics. Community user groups should be engaged to guide the design
process.
18. Continue to engage independent Arena Boards in Newcastle and Orono to
maximize ice use to the benefit of Clarington arena organizations. As part of
these discussions, explore the possibility of aligning allocation practices of the
Arena Boards with the Municipality to ensure that ice time is permitted in a fair
and transparent manner.
19. Engage adjacent communities such as the City of Oshawa to negotiate access
to arena time for local organizations to alleviate short-term demand for additional
ice time.
20. Undertake a life cycle and building condition audit of the Darlington Sports
Centre to determine its lifespan and investment requirements to guide decisions
to maintain the facility for ice or repurpose to other uses.
4.2 Indoor Aquatics Centres
Current Supply
There are three indoor aquatic centres in Clarington
located at the Alan Strike Aquatic and Squash Centre,
Courtice Community Complex, and the Diane Hamre
Recreation Complex. Each location features a 25-
metre, 6-lane, rectangular tank with amenities,
including a co-ed whirlpool and sauna. A tot pool and
a waterslide are also provided at both the Courtice
Community Complex and the Diane Hamre
Recreation Complex. The Alan Strike Aquatic and
Squash Centre is designed to accommodate
competitive lane swimming, and its design provides a
different aquatic experience compared to the other
locations in Courtice and Newcastle, which are more community based.
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Market Conditions
Indoor aquatic facilities are popular as swimming appeals to people of all ages and
abilities in structured or drop-in programs. As with most municipalities, Clarington places
considerable focus on learn-to-swim and aquatic fitness through its programming.
Swimming activities are some of Clarington’s most popular programs. Key indoor
aquatic trends include the following:
• Since the COVID-19 pandemic, the use of indoor aquatic centres is on track to
recover to and exceed pre-pandemic levels, including in Clarington.
• Learn to swim programs are usually the highest demand use for an indoor
aquatic facility, although there is a growing aquatic fitness market that is well
suited to adults and older adults as it is a low impact, social activity that promotes
physical health.
• Swim clubs are major indoor aquatic facility users that tend to prefer traditional
rectangular pool configurations with lanes and cooler water temperatures, while
the aquafit and early childhood learn-to-swim markets are increasingly shifting
their preferences to warmer water temperatures and/or warm water therapeutic
tanks.
• Modern indoor aquatic amenities that are desirable include, but are not limited to,
warm water temperatures (or cooler water for swim clubs), viewing galleries,
accessibility features, and universal design elements (e.g., family change rooms).
More than half (54%) of community survey respondents have participated in
instructional, recreational, or aquafit swimming, which was the 7th most popular
recreation activity. Four-of-five (79%) respondents supported investment in indoor
pools, which was ranked the fourth highest facility type. Requests for additional indoor
pools were received throughout the consultation process, with many residents noting
requirements for competition pools and the challenges with limited access to swimming
lessons.
Addressing the Need for a New Indoor Aquatic Centre
To guide future needs, the Municipality’s 2017 IFDS recommended that indoor aquatic
centres should target a range between one per 35,000 to 40,000 residents. This target
is on the higher end of the spectrum compared to other municipalities across the GTHA,
although the Municipality’s provision target reflects the high value that residents place
on indoor swimming activities and the slightly younger median age profile. It also
reflects the Municipality’s current provision approach where there is one indoor a quatic
centre in each urban area (Bowmanville, Courtice and Newcastle), although the user
experience may vary at each location. The Municipality’s supply results in a service
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level of one per 38,782 residents, which is within the recommended range and higher
compared to the benchmark average of one per 46,195 residents.
By 2036, Clarington’s population is projected to reach 162,640 and by this point, the
Municipality will require a new indoor aquatic centre to maintain its current provision
level and to meet aquatic needs associated with a significant population increase (Table
11 ). The greatest need is in the Bowmanville area, which is expected to reach nearly
80,000 people by the end of the planning period (Table 12). The recommended target
range suggests that a population of this size would be sufficient to support two indoor
aquatic locations.
Table 11: Projected Indoor Aquatic Centre Needs, 2026 to 2036
2026 2031 2036
Projected Population 123,730 143,970 162,640
Number of Indoor Aquatic Centres Required
(Based on 1 per 35,000 to 40,000 residents) Up to 3.5 Up to 4.1 Up to 4.6
Indoor Aquatic Centres Needed
(Based on a supply of 3 indoor aquatic centres*) 0.5 0.6 1.6
* The Alan Strike Aquatic and Squash Centre pool is geared towards competitive swimming and provides
a different aquatic experience compared to the Courtice and Newcastle locations that are more
community focused.
Table 12: Projected Indoor Aquatic Centre Needs by Community, 2026 to 2036
Community Existing
Supply
Projected 2036
Population
Indoor Aquatic
Centres Required **
Indoor Aquatic
Centres Needed
Bowmanville 1* 79,972 2 +1
Courtice 1 40,286 1 +0
Newcastle 1 20,417 1 +0
Rural/Orono 0 21,955 0 +0
Total 3 162,640 4 +1
* The Alan Strike Aquatic and Squash Centre pool is geared towards competitive swimming and provides
a different aquatic experience compared to the Courtice and Newcastle locations that are more
community focused.
** Number of indoor aquatic centres required based on a recommended target of one per 35,000 to
40,000 residents.
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Based purely on the provision target alone, Clarington would not require a new
indoor aquatic centre until after 2031; however, there are other factors to consider
that influence needs including the following:
• The pool at the Alan Strike Aquatic and Squash Centre is not as conducive to
community programming as its design and limitations are geared towards
competitive swimming.
• There is current pressure for community-based programming in Bowmanville,
which is expected to grow as the population increases.
• Clarington is geographically large and although there are indoor aquatic
centres in Courtice and Newcastle, some Bowmanville residents may not have
the ability to travel to these facilities.
Given these factors, it is recommended that the Municipality explore the feasibility of
providing an indoor aquatic centre in Bowmanville in the short-term to coincide with the
first phase that is currently being developed (although should not delay the current
process). This location is the ideal location given that there is ample land available at
this site and there are efficiencies in construction and facility operations, as well as
cross-programming opportunities afforded by co-locating facility components.
The new indoor aquatic centre should be designed to be large enough to support
current and future needs, as well as to meet the needs of organized user groups
(including competitions) and the broader community. At a minimum, the indoor aquatic
centre should include a 25-metre tank with six lanes, although the feasibility of a tank
with eight lanes should be evaluated subject to site availability and cost. Other features
should include a leisure tank and/or warm water therapy tank, universal family
changerooms, beach entry, viewing areas, and accessibility features.
The Future of the Alan Strike Aquatic and Squash Centre
Originally constructed in 1982, the Alan Strike Aquatic Centre and Squash Centre
features a rectangular pool tank with six lanes. The design is antiquated by today’s
standards as it does not offer the modern amenities that are commonly desired by
aquatic facility users such as accessibility features, separate teaching tank, and warm
water. Renovations were undertaken in 2015, although this was primarily to replace
aging mechanical equipment and undertake a facelift to the exterior and lobby area.
While there are community programming limitations at this location, it is home to the
Clarington Swim Club. The group prefers the configuration of the rectangular pool tank,
although the group expressed the desire for more pool time to accommodate
programming demand. They anticipate that pressure will increase as population growth
in Bowmanville continues.
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The new indoor aquatic centre recommended in
Bowmanville will help alleviate pressure that the
Clarington Swim Club is currently facing, particularly
as this Master Plan encourages that it be designed in
a manner that provides the Municipality with
enhanced capacity for community and club use, as
well as consider sport-friendly features to support
competitions and meets. Requests were made for a
50-metre pool, although this is not being
recommended.
By the end of the planning period, the Alan Strike
Aquatic and Squash Centre will be nearing its
lifespan and at that point it will require reinvestment if
the Municipality intends to continue operating this
location. Once the indoor aquatic centre at the South Bowmanville Recreation Centre is
operational, the Municipality should assess its performance in meeting community
needs and capacity levels to determine the future of the indoor pool at the Alan Strike
Aquatic and Squash Centre. This may include deci sions to reinvest in the facility to
extend its life to continue to serve the community, adaptative re-use of the space for
community programming, or other use. Decisions regarding the future of the Alan Strike
Aquatic and Squash Centre over the longer-term could require an alternative site for
another indoor aquatic centre (beyond the time frame of this Master Plan).
Reinvestment in Existing Indoor Aquatic Centres
The 2017 IFDS recommended enhancements to the indoor aquatic centre at the
Courtice Community Complex to improve its functionality to ensure that it can support
current and future population growth that is forecasted for this community, and that it
offers the modern amenities that are desired by aquatic facility users. The Municipality
recently completed modest improvements to this indoor aquatic centre by removing a
wall between the whirlpool and pool area to improve safety and sightlines.
The previous study identified facility enhancements to consider, which may involve
expanding the building footprint. These enhancements continue to be supported to
deliver a broad range of community programs and alleviate pressures that are currently
being experienced. This includes:
• Reconfiguring the teaching pool as its present depth and dimensions limit its
capacity to deliver simultaneous programming – the teaching pool could be
redesigned in a manner like that found at the Diane Hamre Recreation Complex.
Alan Strike Aquatic and Squash Centre
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• Constructing a warm water therapy pool (either integrated as part of the teaching
pool or as a separate tank), which would strengthen this location as hub for 55+
programming that takes place at this location.
• Enlarging changerooms, particularly the family changeroom areas, or
repurposing the existing changeroom space to support aquatic activities and
constructing new changerooms through a facility expansion.
No enhancements are recommended at the Diane Hamre Recreation Complex. Having
been constructed in 2008, this indoor aquatic centre is a modern facility by today’s
standards and expectations and will meet the needs of current and future residents in
this area over the course of this Master Plan, if it continues to be maintained regularly to
remain in a state of good repair.
Recommendations
21. Explore the feasibility of constructing an indoor aquatic centre concurrently with
the first phase of the South Bowmanville Recreation Centre, which should be
designed to support both community programming and competitions (although
this should not delay the current process). Engage community user groups as
part of the design process.
22. Assess the future of the Alan Strike Aquatic Centre and Squash Centre, with
consideration given to reinvestment to extend the life of the facility, adaptive re -
use opportunities for community programs, or other uses. Decisions regarding
the future of the Alan Strike Aquatic and Squash Centre over the longer-term
could require an alternative site for another indoor aquatic centre (beyond the
time frame of this Master Plan).
23. Undertake a feasibility study to guide enhancements to the indoor aquatic centre
at the Courtice Community Complex to address a broader range of community
programming and uses, which may require expanding the facility to the west.
Enhancements include reconfiguring and redesigning the teaching pool to reflect
what is currently offered at the Diane Hamre Recreation Complex, constructing
a warm water therapy pool, and enlarging changerooms.
4.3 Fitness Spaces
Current Supply
A fitness centre is located at the Courtice Community Complex, which includes a range
of fitness training equipment (e.g., cardio/conditioning, strength training, etc.) and a
group fitness studio for active programming. Group fitness programs are also held in
multi-purpose spaces at other community complexes in the Municipality. In addition,
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there are several private fitness providers operating in Clarington such as Planet
Fitness and CrossFit Bowmanville.
Market Conditions
Physical fitness and individual wellness are top priority issues among many Canadians,
resulting in a greater emphasis being placed on personal health. Key fitness trends
include the following:
• Group fitness programming has become one of the fastest growing segments of
the fitness sector, more so than traditional weight-training, as these programs are
designed to be fun and social activities.
• Active living activities centred on general health and wellness, cardiovascular
training, and stretching activities such as yoga and Pilates are popular programs.
• Municipalities are keeping pace with other fitness trends such functional training
(e.g., TRX, Cross-Fit, and High Intensity Interval Training) based on scientific
evidence documenting its benefits but also in response to user demands.
The community survey indicated that 38% of respondents have participated in aerobic,
yoga, or fitness programs. 21% of respondents also participated in weight training. 71%
of respondents supported additional investment in fitness centres which was ranked the
8th out of 41 facility types. Requests were made for another fitness facility in other areas
of the Municipality as the location in Courtice is not convenient for some residents,
particularly for those in Bowmanville and Newcastle.
Focusing on Active Living and Wellness Activities within Multi-Purpose Spaces
Decisions to provide equipment-based fitness centres are based on several factors,
including the corporate desire to offer this public service to provide access to affordable
fitness opportunities, ability to be incorporated within a multi -use community centre with
complementary facility components (such as an indoor pool), geography, and state of
the private sector market. As Clarington continues to grow and intensify, it is anticipated
that the supply of non-public fitness centres that offer equipment-based services will
grow as it can be expected that these types of amenities will be offered within
condominiums to owners and tenants.
New equipment-based fitness centres in Clarington are not recommended. The
recommended strategy should be to continue complement existing equipment-based
fitness services by offering group fitness activities through Clarington’s multi-purpose
spaces. This will mean ensuring that new and existing community facilities offer
appropriate spaces that are designed with amenities that support group fitness activities
and cross-programming opportunities, including at the future South Bowmanville
Recreation Centre.
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Recommendations
24. Include fitness studio space (or multi-purpose spaces) to support group fitness
activities designed with appropriate amenities in new and redeveloped
community centres.
4.4 Indoor Walking Tracks
Current Supply
While the Municipality does not provide an indoor walking track, the Bowmanville Indoor
Soccer Facility is the location for the Clarington Walks program, where users can walk
the perimeter of the field. A new indoor walking track is planned at the future South
Bowmanville Recreation Centre.
Market Conditions
Indoor walking tracks are highly desirable community amenities. Key trends related to
indoor walking tracks include the following:
• With Canada’s varied climate conditions, there is a demand for indoor walking
tracks that can be used year-round for walking and jogging, which are commonly
identified as the most popular recreation activities.
• Many modern community centre templates incorporate indoor walking tracks by
encircling a major facility component such as an indoor artificial turf field,
gymnasium, arena, or integrated with circulation areas (e.g., walkways in
common areas, etc.).
• Indoor walking tracks are not revenue generators for municipalities, although the
steady volume of use is viewed as an opportunity to promote physical activity
while increasing the foot traffic in a community centre.
• Sport organizations also benefit from indoor walking tracks for dryland training
and from a broader perspective, they provide safe walking opportunities during
periods of inclement weather. For these reasons, there has been a growing
popularity for indoor walking tracks.
Indoor walking Tracks as Part of Facility Renewal or New Development
It is a best practice to include an indoor walking track as part of major facility renewal or
new development. While there is a capital cost incurred, the operational impacts are
nominal in the context of constructing a new or redeveloped facility and the track does
not have to increase the physical footprint of the facility, pa rticularly if it is elevated or
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encircles another facility component. The inclusion of a walking track as part of the
South Bowmanville Recreation Centre will continue to provide service to this area. This
Master Plan recommends expanding the South Courtice Arena with two additional ice
pads (to create a quad pad facility). The feasibility of designing one of the new ice pads
with an indoor walking track should be explored. The inclusion of an indoor walking
track through a future expansion of the Diane Hamre Recreation Complex should also
be visited though it is not expected during this planning period. Indoor walking tracks
should have a minimum of three lanes with a rubberized or coated surface.
Recommendations
25. As part of a twin-pad arena expansion to the South Courtice Arena, assess the
feasibility of incorporating an indoor walking track as part of the design, which
should have a minimum of three lanes with a rubberized or coated surface.
4.5 Gymnasiums
Current Supply
A full-size gymnasium is located at the Diane Hamre Recreation Complex, which can be
divided into two smaller spaces to support simultaneous programs and rentals. A mini
gymnasium is also located at the South Courtice Arena. A new double gymnasium is
proposed to be located at the future South Bowmanville Recreation Centre by
converting the existing indoor artificial turf field. The Municipality’s gymnasium supply is
complemented by school gymnasiums that are available for public rentals.
Market Conditions
Gymnasiums facilitate a variety of indoor sports and recreation opportunities that
require a hard surface, large open space, and high ceilings. Key gymnasium trends
include the following:
• Gymnasiums are primarily used for recreation activities, although some non -sport
uses may also take place in these spaces.
• Gymnasiums are designed with adaptability in mind. The ideal gymnasium size
should be large enough to accommodate a school-sized basketball court with
high ceilings and supporting amenities such as storage, change rooms, and
seating areas.
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Gymnasiums are supported by 64% of household survey respondents for additional
investments, ranking 15th of 41 facilities. Requests were made for additional gyms to
support the desire for more programming, specifically in the Newcastle area.
Responses also identified recommendations to partner with school boards to use their
gym spaces after school hours.
There is Capacity at Existing Gymnasiums
The gymnasium at the Diane Hamre Recreation
Complex was booked for a total of 6,246 hours in
2023, translating into a utilization rate of 56%, which
was a marginal increase from 2019. (Figure 11 ). The
majority of available gymnasium time is during the
daytime, which is typical given that most gymnasium
users are not available at this time. Utilization levels
have been gradually increasing from historical levels
suggesting that the Municipality has been making
efforts to increase the use of their gymnasiums,
particularly through increased fitness programming.
Figure 11: Diane Hamre Recreation Complex Gymnasium Utilization
Note: Data not available for 2015 to 2018 and 2020 to 2021.
There is also available capacity at the South Courtice Arena mini gymnasium , which is
constrained by its small size and resulting program limitations . In 2023, this mini
gymnasium had a utilization rate of 30%, which was a decline from 43% in 2019.
New Gymnasiums as part of New or Expanded Community Facilities
Excluding the mini gymnasium at the South Courtice Arena due to its small size, which
limits its programming capability, Clarington is providing gymnasiums at a service level
of one per 108,757 residents, which is the lowest level of service compared to
benchmark municipalities. There are many factors to consider that guide the provision
22%21%24%
33%
40%
55%
46%
56%
2010 2011 2012 2013 2014 2019 2022 2023
Diane Hamre Recreation Complex
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of municipal gymnasiums, including the strength of community access to school
gymnasiums, geographic distribution, and the ability to co -locate gymnasiums as part of
new facility development or expansion opportunities to support community programming
and rentals. Population-based service targets may also be considered. The provision of
public gymnasiums is influenced by the level of access to school gymnasiums. For
example, Whitby provides two public gymnasia but partners with a non -profit
organization to provide programs at 10 local school gymnasiums.
The 2017 IFDS recommended a target of one full-size gymnasium per 50,000 residents,
which generally aligns with population-based metrics used in other communities.
Application of the Municipality’s current target would suggest that there is a need
for two gymnasiums by the end of the planning period (Table 13), which will be
satisfied with the construction of the South Bowmanville Recreation Centre, which
will include a double gymnasium and result in a projected service level of one per
54,213 residents by 2036.
Table 13: Projected Gymnasium Needs, 2026 to 2036
2026 2031 2036
Projected Population 123,730 143,970 162,640
Number of Gymnasiums Required
(Based on 1 gym per 50,000 residents) 2.5 2.9 3.3
Gymnasiums Needed
(Based on a supply of 1 gymnasium)* 1.5 1.9 2.3
* Excludes the mini gymnasium at the South Courtice Arena, which has program limitations due to its
small size.
The full-size gymnasium in Newcastle and a double gymnasium in Bowmanville w ill be
sufficient to meet the service target. As this Master Plan recommends expanding the
South Courtice Arena to accommodate two additional ice pads, there will be no
opportunity to expand the mini gymnasium. Repurposing this space is not
recommended given that it would eliminate the only municipal gymnasium in Courtice ,
and no alternative facility needs have been identified that would be suitable in this
location.
While Courtice would remain somewhat underserved with a mini gymnasiu m, there are
no new indoor facilities recommended in this area during the Master Plan timeframe.
Should there be future development opportunities, the need and feasibility of
incorporating a full-size gymnasium should be explored in the longer-term. During the
planning period, continuing to maintain and expand municipal and community access to
school gymnasiums is encouraged. A cursory review of rental schedules of secondary
school gymnasiums in Courtice, which are most desirable due to their large size, found
that available time during the weekday evenings is limited. The majority of time is
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available during the weekend, which could be an opportunity for the Municipality;
negotiating access to weekend time at secondary school gymnasiums would be
financially advantageous compared to constructing a new public gymnasium in Courtice
(which is not being recommended at this time).
Recommendations
26. Move forward with converting the indoor artificial turf field at the Bowmanville
Indoor Soccer Facility with a double gymnasium.
27. Continue to work with school boards to maintain and negotiate enhanced access
municipal and community access to school gymnasiums.
4.6 Multi-Purpose Spaces and Community Halls
Current Supply
There are 17 multi-purpose spaces located within Clarington’s community facilities,
including activity rooms, meeting rooms, and community halls. These spaces vary in
size, capacity, and range of amenities, which may include (but not be limited to), seating
and tables, washrooms, storage space, counter tops with sinks, and kitchens. In
addition to this supply, the Municipality also owns 11 standalone community halls in the
rural areas, which are operated by volunteer boards.
Market Conditions
Multi-purpose spaces are flexible spaces that bring the community together and support
a range of uses, including community programming, social activities, meetings, and
rentals. Key trends include the following:
• Multi-purpose spaces and community halls are core elements of community
facilities. They should be provided when constructing or renovating community
centres to support programming opportunities.
• The development of new stand-alone community halls is typically discouraged as
they are less efficient to construct and operate compared to integrated spaces
within multi-use community centres.
There was a general desire from both survey respondents and stakeholders for more
multi-purpose spaces in Clarington. Nearly half (49%) of the survey respondents
supported additional investment in community halls and meeting spaces, ranking 28 th
out of 41 facility types.
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There is Capacity in Clarington’s Multi-Purpose Spaces and Community Halls
A review of booking data for the Municipality’s multi-purpose spaces revealed that there
were 18,264 hours booked in 2023, which was an increase of 20% (or 3,061 hours)
from 2019. This translates to a system-wide utilization rate of 34% across all multi-
purpose program spaces in Clarington, suggesting that there is ample capacity to
accommodate additional bookings. This level of use is common for this facility type as
they are not ones that exhibit high levels of use, but rather they are provided to ensure
that the Municipality has flexible programming spaces, and that the community has
access to affordable indoor gathering spaces. Among the Municipality’s multi -purpose
spaces, Program Rooms #2 and #3 at the Diane Hamre Recreation Complex had the
highest level of use in 2023, with a combined utilization rate of 54%.
Providing Multi-Purpose Spaces in New and Redeveloped Community Centres
While there is existing capacity within the Municipality’s supply of multi -purpose space,
they are generally not expected to be highly utilized spaces but are provided to ensure
that there are flexible and affordable indoor venues for community programs and
rentals. To ensure that these spaces are optimize for maximum community benefit, they
are best located within community centres, which also allow for cross-programming
opportunities and efficiencies with construction, staffing , and maintenance, while
enhancing the geographic distribution of community space. Additionally, t hey are also
relatively low-cost to provide from a capital and operating perspective compared to
other major facility components such as an arena and indoor aquatic centre.
Multi-purpose spaces should be considered when planning new, or redeveloping
existing, community facilities, which is the Municipality’s approach as integrated
program spaces are proposed to be located as part of the South Bowmanville
Recreation Centre. Flexibly designed multi-purpose spaces will be important to ensure
that they can be used for a variety of purposes, which means that they should be large
enough to accommodate general programming at a minimum; the provision of small
meeting rooms is discouraged. Supporting amenities may include, but not be limited to,
countertops, sinks, storage cabinets, durable flooring, dividing walls, audio and visual
equipment, kitchens, and other features. The ability of such spaces to accommodate a
wide variety of uses can improve utilization, including for arts and cultural activities and,
where a branch library is part of the complex, for library programming opportunities .
Working Together to Enhance the Use of Community Halls
Clarington’s 11 standalone community halls are operated by volunteer organizations
and are used for a range of events such as birthdays, family gatherings, receptions, and
programming. They are important venues that serve the rural area and contribute to
providing a strong geographic distribution of community spaces. Detailed facility usage
statistics were requested to inform this Master Plan but were not readily available,
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although consultation with these groups revealed that the spaces are well used by the
rural community by people looking for affordable rental spaces that are large enough to
host events that could not be accommodated within their private spaces. The level of
use varies at each location as some are used nightly and others are used a few times a
week and during the weekends.
Like many communities, Clarington’s rural residents place a high value on its community
facilities as they function as gathering hubs to celebrate activities and occasions, create
a sense of place, and contribute to their quality of life. These attributes underscore the
importance of continuing to maintain and strengthen partnerships with volunteer boards
and ensure they are successful over the long-term to continue to achieve the benefits of
sharing resources and responsibilities, as well as reducing Munic ipal operational
requirements. It is particularly important to ensure their success to minimize any risks to
the Municipality. For example, if a volunteer board is unable to continue operating a
community hall, the rural residents may look to the Municipal ity to step in to provide the
service, which would have an operating implication on staffing and other resources.
It is also important to ensure that the community halls are maintained in a state of good
repair, which is primarily the Municipality’s responsibility, although some capital
improvements are funded (partially or whole) by community halls through reserves,
fundraising, or other sources. Many of the rural community halls are aging, outdated,
and in need of modernization to a level that is expected among residents and facility
users. This includes, but is not limited to, addressing lifecycle needs and undertaking
accessibility retrofits. Facility enhancements and upgrades should be informed by
detailed building condition audits and based on the need to maintain a state of good
repair. Understanding the usage trends of each community hall will also help the
Municipality rationalize facility reinvestment.
Multi-purpose Spaces in Intensification Areas
GTHA municipalities such as Richmond Hill have been working with the land
development industry to explore incorporating community spaces within condominiums
to secure multi-purpose spaces in high-density areas. Planned intensification of
Clarington’s urban areas, particularly in areas of intensification (MTSAs), may yield
opportunities to negotiate public space within private developments.
Lessons learned to date in other communities suggest that it is important to define the
types of uses that will be delivered at the time multi-purpose spaces (or other public
space) is being planned and negotiated with private partners to ensure sufficient size,
convenient building access for public and staff, parking, and that spaces are equipped
with appropriate amenities. It would also be prudent to confirm capital and ongoing
operational responsibilities between the Municipality and its partners from th e outset.
This way, negotiations and agreements can be carried out throughout the development
approval process and avoid unexpected challenges. While there can be limitations to
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these types of arrangements, public-private spaces such as multi-purpose spaces in
condominiums can play an important role in providing locations for gatherings and
programming in established areas where developable land is often scarce and
opportunities for traditional community spaces are not feasible.
Recommendations
28. Provide multi-purpose spaces in new or redeveloped community centres that are
flexibly designed in a variety of sizes and with supporting features to
accommodate community programs, rentals, and arts and cultural activities,
potential library use, as well as youth and older adult uses.
29. Continue to work with rural community hall partners explore expanding
recreation and leisure opportunities for the rural community and to ensure long-
term operational success. Facility enhancements and upgrades should be
informed by building condition audits and based on maintaining a state of good
repair and facility usage trends.
30. Monitor program space needs as population increases in intensification areas
with consideration given to partnership opportunities with the development
industry to incorporate multi-purpose programmable space within condominium
buildings where a gap in the provision of programmable space is identified ,
which should have regard for public access, flexible, and sufficiently sized
spaces, parking accommodations, and supporting amenities such as storage
spaces and countertops.
4.7 Dedicated Youth and Older Adult Spaces
Youth Spaces
The Municipality provides youth space in partnership with the John Howard Society of
Durham Region and the local community. Through this partnership, drop -in recreational
space is provided at the South Courtice Arena and at the Diane Hamre Recreation
Complex, which are known as The Loft and The NYC, respectively. A variety of activities
are available at each location including, but not limited to, sports, video games,
computers, WIFI, and board games, as well as structured recreational programming.
The Municipality also contributes funding towards the Firehouse Youth Centre in
Bowmanville, which is third-party operated. These dedicated youth spaces complement
the Municipality’s youth-oriented recreation programming that take place throughout
Clarington and complement other youth spaces and services provided by others such
as the CLMA.
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Some municipalities have provided dedicated youth spaces, or multi-purpose spaces
with designated times for youth, that are casual drop-in. As research suggests that
youth prefer unstructured activities and thus, spaces tend to be flexibly designed to
allow them to participate in their desired activities on their own schedule or to participate
in programming or events. Not only are youth spaces important to provide a safe
meeting space, but they can also facilitate positive reinforcement to combat concerns
surrounding mental and physical health among youth.
Consultation with the Firehouse Youth Centre found that it is a well used space for youth
and teenagers between the ages of 12 and 18. The Centre offers free drop -in
programming, as well as food and transportation to its users. Program availability is
continually evolving as it centres around the interests of users, which may include
sports, arts, and culture, as well as casual socialization. In addition, the Centre also
provides a safe space for users to access social services to provide mental health
support, food security, volunteer opportunities, life skills development, and other
supports to ensure that youth and teenagers become integrated and productive
residents in the community. The community survey also found that 69% of respondents
supported additional investment into dedicated youth spaces, ranking 12 th out of 41
facility types.
Older Adult Spaces
There are two dedicated older adult spaces in Clarington. The Municipality offers
dedicated space for older adults ages 55+ at the Courtice Community Complex to
provide direct programming, including active living classes, general interest activities,
fitness, drop-in programs, and special events, which are provided with the support of
volunteers. The Municipality also offers older adult programming within program spaces
at other locations in Clarington, including the Diane Hamre Recreation Complex, Garnet
B. Rickard Recreation Complex, and rural community halls.
Older adult opportunities are also provided by the Bowmanville Older Adult Association
(BOAA), which provides its programs and services at the Beech Centre in Bowmanville,
which features several indoor program and gathering spaces. Consultation with this
group found that membership levels are strong with 1,500 to 1,700 members, the
majority of whom are between the ages of 70 and 80 years old, although they are also
seeing younger older adults joining the organization. BOAA’s programming is continually
evolving to respond to member interests, including offering online programming and
outdoor activities to reach a wider audience and members outside of the Beech Centre.
The greatest challenge the group is facing is the availability of staffing and volunteers,
particularly during the evenings and weekends. The need for more parking at the Beech
Centre was also highlighted, though the BOAA hopes to alleviate this pressure through
other strategies such as expanding the Wheels in Action Program, as well as finding
other satellite parking lots to shuttle members to the Beech Centre.
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Dedicated older adult spaces have important physical and social benefits as they are
generally regarded as an important part of the health care and recreation sector.
Research has found that members of older adult centres tend to be healthier and have
strong activity patterns that help them remain physically well (55% of members
described their level of physical activity as fair/moderate, and 33% as good/excellent).5
In general, older adult centres province -wide have been most successful in attracting
individuals from lower or middle income brackets, including a very high portion of single
women. Thus, older adult spaces play a key role in engaging this segment of the
community, particularly those who may be at risk, to minimize isolation and achieve
lifelong engagement.
Planning Age-Friendly Spaces for Youth and Older Adults
The Municipality and its partners have made intentional efforts to engage youth and
older adults in active and healthy lifestyles, as well as lifelong learning and engagement
through dedicated spaces. There is currently a strong supply of dedicated youth and
older adult spaces across Clarington, which is augmented by multi -purpose program
space that supports complementary programming.
As the Municipality plans for the development of the new South Bowmanville Recreation
Centre, continuing to provide a blend of these two facility models is
recommended. While the Municipality has historically provided dedicated age spaces
within its facilities and have benefited from established community partnerships, it is not
recommended at this new location given the presence of dedicated age space in
Bowmanville at the Beech Centre and Firehouse Youth Centre. Instead, the
recommended strategy is to ensure that the multi-purpose program spaces being
planned at this location are conducive for supporting a wide range of complementary
youth and older adult programming, as well as other community uses and rentals.
The recommended strategy will ensure that the Municipality maximizes the use of
space, particularly given that older adults tend to use community facilities during the
daytime, and youth use spaces during the evenings. Opportunities may also exist to
expand existing partnerships with community organizations to offer satellite outreach
programs in these spaces.
Clarington’s 2015 Older Adult Strategy recommended a number of facility -related
recommendations, including new space at the Courtice Community Complex, which has
been completed. Dedicated older adult space at the Diane Hamre Recreation Complex
was also recommended, although it has not been implemented. No expansion to this
5 Older Adult Centres’ Association of Ontario. 2010. Building Bridges to Tomorrow: User Profile of Older
Adults Centres in Ontario. p.4, p.68.
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facility is being recommended currently, although continuing to offer older adult
programming within multi-purpose spaces at this facility is strongly supported.
The design of indoor and outdoor public spaces is also an important consideration to
ensure that Clarington’s facilities and parks are welcoming for all ages, including youth
and older adults. This includes incorporating accessibility features and providing casual
gathering spaces such as comfortable lobby areas with seating , drinking fountains, and
open greenspace for casual gatherings. This Master Plan also recommends
investments in facilities such as sports fields, basketball courts and skate parks that are
geared towards youth, as well as amenities that appeal to older adults (and other age
groups) such as trails, outdoor fitness equipment, and community gardens.
Recommendations
31. Direct youth and older adult programming to multi -purpose spaces and
community halls to bolster facility utilization to complement existing youth and
older adult program and service providers, including at the future South
Bowmanville Recreation Centre, potentially through satellite outreach programs
in partnership with community organizations.
32. Design indoor community facilities and outdoor parks with an age -friendly lens to
create welcoming, attractive, safe, and accessible spaces for all residents,
including youth and older adults. Consultation with youth and older adult
residents is encouraged to guide design processes.
4.8 Squash Courts
Current Supply
Two international squash courts are located at the Alan Strike Aquatic and Squash
Centre, which is operated by the Clarington Squash Club. This organization provides
recreational and competitive league play, programming, lessons, and tournaments, as
well as court rentals.
Market Conditions
Key trends related to squash are identified below:
• Squash was popular between the 1970s and 1990s and it has since been a sport
in decline, although Squash Ontario has been making efforts to grow interest in
the sport through initiatives such as greater community engagement and
promoting grassroots programming. Squash was recently approved as an
Olympic sport for the 2028 Los Angeles Games, which may help raise its profile.
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• Municipalities that provide squash courts have generally found that use of these
amenities has been declining as interest waned and as a result, there are
examples of communities (such as Niagara Falls) that have repurposed squash
courts to other uses such as fitness spaces.
• Privately-operated squash courts exist in many communities in Ontario that have
established memberships and programs; there are currently no privately-
operated squash locations in Clarington.
Use of Squash Courts is Increasing
The squash courts at the Alan Strike Aquatic and Squash Centre are used by the
Clarington Squash Club and for the 2022/2023 season, the Club reported 145 adult and
junior members, which was an increase from 65 members during the 2017/2018
season. This is a significant increase, although the number of memberships fluctuate
year to year; 102 memberships were reported for the 2023/2024 season. In addition to
member users, there were also 111 pay as you go players. Consultation with the Club
revealed a desire for additional courts to accommodate tournaments and attract new
members.
Maintaining Squash Opportunities in Clarington
Clarington is currently providing squash courts at a rate of one per 54,379 residents,
which is higher compared to the benchmark average (one per 80,161 residents). The
Municipality is expected to grow to 162,640 by 2036, at which point the service level for
squash courts will decline to one per 81,320, aligning with the benchmark average. The
Municipality previously explored expanding the Alan Strike Aquatic and Squash Centre
to add an additional squash court, among other facility enhancements, although Co uncil
at the time decided to move forward with basic facility improvements that did not include
squash.
There are very few new courts being developed within municipal recreation facilities,
although the future of the Municipality’s two courts needs to be considered. They were
originally constructed in 1982, and they are the only courts in Clarington; municipal
squash courts in Durham Region are available in Pickering, Ajax , and Oshawa. While
the Municipality made investments in the entire facility to enhance accessibility and
replace lifecycle components, it is an aging facility, and it is expected that it wi ll reach
the end of its lifespan towards the end of this planning period or shortly after, unless
reinvestment into the facility is made once again.
This Master Plan recommends that once the new indoor aquatic centre is constructed at
the South Bowmanville Recreation Centre, the Municipality should assess the future of
the Alan Strike Aquatic and Squash Centre to determine the merit of reinvesting in t his
facility or accommodating existing uses elsewhere (including squash). The Municipality
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should work with the Clarington Squash Club to continue to promote the sport,
potentially increasing membership and pay as you go users. Working with the Club to
promote program offerings and grassroots opportunities may generate greater
awareness of the sport in Clarington and attract new players through new initiatives
such as free “try it” and “bring a friend” sessions, and school programming.
Recommendations
33. Work with the Clarington Squash Club to maintain interest in the sport,
potentially increasing memberships, pay as you go users, and court bookings.
Municipal support may be required to assist with court bookings, promoting club
programming, and attracting new players. Monitoring court use will inform future
assessments associated with the Alan Strike Aquatic and Squash Centre.
4.9 Indoor Artificial Turf Fields
Current Supply
The Bowmanville Indoor Soccer Facility contains the Municipality’s year -round indoor
artificial turf field, which measures 180’ by 100’ in size. Supporting amenities at this
facility include a partition to create two smaller fields, four change rooms, meet ing room,
referee room, and walking loop. To enhance programming opportunities and increase
field capacity, the Municipality is moving forward with constructing a new FIFA size
indoor artificial turf field as part of the South Bowmanville Recreation Centre , which will
be located at the same site and will replace the existing facility (which will be converted
into a gymnasium).
Market Conditions
Municipalities are increasingly providing indoor artificial turf fields to support the demand
for year-round sports and activities. Key trends related to indoor artificial turf fields
include the following:
• Indoor artificial turf fields predominantly accommodate winter field activities such
as soccer, football, rugby, baseball training, fitness, and more – some of these
activities may also take place in gymnasiums.
• Field dimensions vary but generally, a FIFA regulation field is the leading practice
for the standard template that can be booked as a full, half, or quarter field –
Clarington’s existing indoor artificial turf field at the Bowmanville Indoor Soccer
Facility is undersized by this standard. The new replacement indoor artificial turf
field will allow the Municipality to increase programming capacity.
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Community requests were made for additional indoor artificial fields for sports other than
soccer such as football, baseball and ultimate frisbee.
Use of Indoor Artificial Turf Field is Strong
The existing indoor field in Bowmanville can be booked as a full field or two half fields to
accommodate simultaneous programming, although most bookings are for the full field.
In 2023, the indoor field had a combined total of 1,113 hours booked, resulting in a
prime-time utilization rate of 60% (Figure 12). While this is nearly double the utilization
rate from the previous year (33%), it generally aligns with historical usage rates that
ranged between 51% and 73%. The utilization rates for 2022 and 2023 excludes
programming data and, as a result, actual usage levels may be higher.
Figure 12: Historical Bowmanville Indoor Soccer Facility Utilization Rates during Prime Time
Note: Data not available for 2015 to 2021. 2022 and 2023 season excludes programming data.
The New Indoor Artificial Turf Field Will Meet Needs
Leading municipalities across the GTHA that provide indoor artificial turf facilities
typically target a rate of one per 100,000 residents, although there are examples of
smaller municipalities that also provide this level of service. Clarington is current ly
meeting this target based solely on this generally accepted provision target; however,
the Municipality’s existing indoor field is constrained by the fact that it is undersized
compared to regional examples such as at the Oshawa Civic Fieldhouse, which
provides a full-size FIFA field (223’ by 345’) that can be simultaneously programmed as
four fields. By comparison, Clarington’s smaller indoor field (180’ by 100’) can be
simultaneously programmed as two fields.
It is anticipated that the new indoor artificial turf field will be sufficient to meet community
needs during the planning period; monitoring its use is recommended to inform future
needs during the next planning period (beyond 2036).
73%
65%62%59%
51%
33%
60%
2010 2011 2012 2013 2014 2022 2023
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Recommendations
34. Proceed with the development of a new full size indoor artificial turf field as part
of the South Bowmanville Recreation Centre to replace the existing facility at the
Bowmanville Indoor Soccer Facility. While no additional facilities are
recommended during this planning period, the Municipality should monitor the
use of the new facility to inform future needs.
4.10 Outdoor Rectangular Fields
Current Supply
The Municipality has 38 outdoor rectangular fields for soccer and other field sports such
as football and lacrosse (including Darlington Hydro Fields). Five of these fields have
lights for extended play, one of which is artificial turf. To account for extended playing
capacity, each lit artificial field and natural grass field is considered to be equivalent to
2.0 and 1.5 unlit fields, respectively. As a result, the Municipality has an effective supply
of 41 unlit equivalent fields (Figure 13). The Municipality also permits nine school fields
for a total of 50 unlit equivalent fields. Excluded from the supply are the four fields at the
Clarington Fields in Bowmanville, although they are currently in use, they will be
removed from the supply with the construction of the South Bowmanville Recreation
Centre.
Market Conditions
Outdoor recreation fields are used for multiple sports , including soccer, football, rugby
and field lacrosse. Key trends associated with these sports include the following:
• In 2019, Ontario Soccer reported approximately 272,000 players which was 28%
below registrations from 10 years prior.6 The Durham Region Soccer Association,
which is the regional affiliate that covers Clarington, reported a participation
decline of 37% during the same period due to aging demographics, competition
from other sports and activities, and the emergence of elite soccer clubs and
academies that are not affiliated with the provincial governing body. Despite this
decline, soccer continues to be a popular sport due to its worldwide appeal, high
fitness quotient, and relatively low cost to participate.
• Football is generally played by minor age groups under the age of 20 and while
concerns over head injuries have limited the sport’s growth, they have somewhat
6 Ontario Soccer Association. Annual General Meeting Reports.
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been tempered by the introduction of flag football, which is a non-contact form of
the sport. Football organizations are often challenged in securing field access
largely due to certain soccer fields being “protected” from cleat damage that can
occur in the fall. For this reason, football groups tend to appreciate the quality of
synthetic surfaces and value these fields’ resilience to inclement weather that can
occur in the spring and fall.
• Field lacrosse is one of the three types of the sport, the others being box
lacrosse and inter-lacrosse. Between 2004 and 2019, the number of players
affiliated with Lacrosse Canada grew modestly by 10% to 48,000 players, with
growth attributed to the increase of field lacrosse players.7
• In 2022, Rugby Canada reported approximately 38,000 youth and adult rugby
players registered with their affiliated clubs, which was a 28% growth from 2017 .
This growth is attributed to the introduction of grassroots programming and the
international exposure of the national Canadian team.
Use of Outdoor Rectangular Fields is Increasing
The Municipality’s booking data identified that the rectangular fields were used for 6,471
hours in 2023, which includes 867 hours permitted at school fields. This is an increase
of 55% (or an additional 2,315 hours) from 2019, where there were 4,156 hours booked.
This increase was due to an increase in the use of key sites, including the artificial turf
field at the South Courtice Arena and the natural grass fields at Longworth Park,
Scugog Neighbourhood Park, and Clarington Fields. While the number of booked hours
has been increasing, there is capacity at existing fields, although they may not be
usable for all groups due to limitations at some locations, such as fields at
Neighbourhood Parks that do not have on-site parking. The number of hours booked
exclude the use of fields that are not permitted by the Municipality such as the
Darlington Hydro Fields, which is leased to Darlington Soccer Club although the Master
Plan assessment include these fields are part of the existing supply.
Identifying Future Rectangular Fields Needs
Based upon the research conducted for this Master Plan, a service target of one
outdoor rectangular field per 90 participants is recommended, which aligns with targets
used in similar communities. While a more aggressive target was previously applied to
Clarington to reflect increasing field use and the growing number of young families in
the Municipality, there is available capacity within the existing field supply rationalizing
7 Filion, P. 2024. Can we really grow this game? Retrieved from https://www.thinklacrosse.ca
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an adjustment to past practice. Additionally, recreation interests are becoming more
diverse that extends beyond sports and the population is also aging .
The Darlington Soccer Club is the primary user of Clarington’s rectangular soccer fields,
which has approximately 4,900 minor and adult participants. If capture rates grow in
proportion with population growth, it is anticipated that there could be 7,320 minor and
adult participants by the end of the planning period. Based on the Municipality’s target,
there will be a projected need for 31.5 unlit equivalent fields (or 21 lit fields) by
2036 (Table 14). This deficit reflects the fact that the Municipality will lose access to four
fields at Clarington Fields due to construction of the South Bowmanville Recreation
Centre.
Table 14: Projected Outdoor Rectangular Fields Needs, 2026 to 2036
2026 2031 2036
Projected Registration
(Based on current minor and adult capture rates) 5,569 6,480 7,320
Number of Outdoor Rectangular Fields Required
(Based on 1 field per 90 registrants) 62.0 72.0 81.5
Additional Outdoor Rectangular Fields Needed
(Based on a supply of 50 unlit fields) 12.0 22.0 31.5
Note: Projected outdoor rectangular field requirements include replacing four fields at Clarington Fields.
Meeting Future Rectangular Field Needs
Constructing up to 31.5 unlit equivalent fields over the planning period is a sizable
quantity to provide and one that is exacerbated by the need to replace four existing
fields at Clarington Fields (included in the total field needs). This will be particularly
challenging to achieve due to changes to the Planning Act resulting from Bill 23 that has
reduced parkland dedication amounts to the Municipality. Due to the evolving
demographics of Clarington and the potential for change in demand for rectangular
fields, the Municipality should regularly monitor field needs and adjust, if required,
recommended rectangular field needs as part of future updates to this Master Plan.
The Municipality has identified locations for five new outdoor rectangular fields at parks
within its Secondary Plan Areas, although these plans preceded amendments to the
Planning Act resulting from Bill 23. These changes will result in a focus on parks of
sufficient size to accommodate at least one sports field .
Going forward, it is recommended that the Municipali ty focus on meeting short-term
needs. This will focus on implementing strategies to optimize the use of existing
rectangular fields given that there is some capacity at existing fields, as well as
replacing the four Clarington Fields. With this in mind, the following strategies are
recommended.
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• Increase field quality and playing experiences to improve usage levels at
existing locations. Enhancing the quality and availability of amenities that
support the use of the fields should be explored, which may include enhanced
turf management practices and irrigation (recognizing that natural fields still need
time for resting), and adding or modernizing features such as paved pathways,
temporary or permanent washrooms, player and spectator seating, parking, and
more.
Working with the Darlington Soccer Club, and other field users to identify and
prioritize field improvements is recommended, as well as encouraging users to
permit available field time within the existing supply. As part of the strategy to
maximize the use of existing fields, engaging the Darlington Soccer Club to
revisit their exclusive use of the Darlington Hydro Fields should be explored to
accommodate additional rentals when the fields are not being used by the
organization.
• The Municipality should identify locations to add lighting to increase playing
capacity and accommodate greater use at existing fields. Lighting sports
fields also aligns with the Municipality’s Corporate Climate Action Plan, to
enhance field use during the evenings when outdoor temperatures are cooler. A
cursory review of Clarington’s fields suggests that potential locations may include
the South Courtice Arena practice field (recommended in the 2020 Outdoor
Recreation Needs Assessment), Longworth Park and Baxter Park, although the
appropriateness of lighting these or other fields need to be evaluated with
consideration given to minimum setback distances for lit sports fields and the use
of LED systems that produce sharp lighting cutoff. Lighting these potential
candidate sites have the potential to add 1.5 unlit field equivalents to the supply.
• Identify opportunities to replace the Clarington Fields. The Municipality will
have limited options to establish four new fields in a single location to replicate
Clarington Fields, although some options may exist. The Municipality envisions
acquiring a Community Park in the Soper Hills Secondary Plan Area, which is
currently being prepared. Should the Municipality be successful in acquiring this
property, and assuming it would be a minimum size for a Community Park (a
minimum of five hectares), it could potentially accommodate at least two lit
rectangular fields (equivalent to three unlit fields), although the timing of
development is unknown and it is recognized that the Municipality is also facing
pressure for new ball diamonds as well as other outdoor recreation amenities.
As part of a mid-year review of this Master Plan, the Municipality should reassess its
rectangular field needs with consideration given to usage data, participation levels,
stakeholder input and the results of the previously noted strategies. The following
strategies are recommended over the medium and long-term.
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• Rectangular fields should be accommodated at new parks, where
opportunities exist. As the majority of new park development is likely to occur
within secondary plan areas, the Municipality will need to place a focus on
acquiring parks that are large enough to potentially accommodate at least one
rectangular field. To achieve this, the Municipality may need to be creative in
acquiring parkland such as acquiring land adjacent to conveyed parkland to
achieve a sufficient park size large enough to construct a rectangular field with
other outdoor amenities.
• Section 3.5 of this Master Plan speaks to acquiring land for a future sports
complex to accommodate a portion of the Municipality’s field needs. It is
unknown how many fields could be accommodated at this location given that the
site does not currently exist; however, this Master Plan identifies that the
Municipality should target acquiring at least 30 hectares to accommodate six lit
fields, equivalent to nine unlit fields, among other outdoor recreation sports
facilities.
• Pursuing partnerships with other landowners should be explored. The 2020
Outdoor Recreation Needs Assessment recommended exploring the feasibility of
working with the Kawartha Pine Ridge District School Board to add lights to the
field at the Bowmanville High School. Other candidates may also include
Clarington Central Secondary School and Clarke High School. Engaging
Peterborough Victoria Northumberland and Clarington Catholic District School
Board to explore lighting St. Stephen Catholic High School and Holy Trinity
Catholic School may also be an opportunity. This strategy could add 2.5 unlit field
equivalents to the supply. While it is recognized that Clarington does not own or
maintain these fields, it may be more cost effective to light school fields
compared to acquiring additional land to construct a new sports field.
Partnering with other landowners such as OPG and the private sector to
construct new rectangular fields could also be investigated.
Monitoring Needs for Other Rectangular Field Sports
Interest in other rectangular field sports such as football, lacrosse, and rugby are
experiencing growth due to various factors. For example, field lacrosse in Clarington is
attracting younger players who are seeking sports other than soccer, hockey, and
baseball/softball, and football is experiencing an increase in participation due to a
growth in female tackle football. These trends have contributed to the demand for field
time. Football and lacrosse are played at the outdoor fields at the South Courtice Arena
and at the Clarington Fields (in addition to indoor fields or arena floor pads ) and rugby is
played at school fields (e.g., Clarington Central Secondary School).
Requests were made for new fields to access additional time and allow groups to grow.
As previously mentioned, the recommended strategy is to undertake field
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enhancements to maximize the use of the existing supply to accommodate users for
these types of growing field sports, engaging school boards to optimize the use of
school fields and exploring the feasibility of partnering to upgrade field quality and
adding amenities and adding new fields at future parks.
Recommendations
35. A total of 31.5 unlit equivalent outdoor rectangular fields (equivalent to 21 lit
outdoor rectangular fields) are required by 2036. Emphasis should be placed on
short-term solutions to optimize the use of existing rectangular fields and
replacing the four Clarington Fields through the following strategy.
a. Undertake strategic improvements to outdoor rectangular fields to maximize
the use of existing outdoor rectangular fields, which may include, but not be
limited to, enhanced drainage and turf management practices, and adding
irrigation, as well as modernizing features such as paved pathways, temporary
or permanent washrooms, player and spectator seating, parking, and more.
Working with the Darlington Soccer Club and other field users to identify and
prioritize field improvements is recommended and to maximize the use of the
field supply.
b. Identify suitable locations to install lighting at existing outdoor rectangular fields
to increase playing capacity. Candidate sites should have regard for minimum
setback distances to adjacent land uses and the use of LED lighting that
produces sharp lighting cutoff.
c. Provide a minimum of two lit outdoor rectangular fields with supporting
amenities at a future Community Park.
d. Engage the Darlington Soccer Club to investigate opportunities to use the
Darlington Hydro Fields to accommodate other renters during available time
when the fields are not being used by the organization.
36. As part of a five-year review of the Master Plan, re-evaluate outdoor rectangular
field needs with consideration given to field usage levels, participation rates, and
the success of short-term strategies to address field needs. The following
strategy is recommended to meet medium to long-term needs:
a. Direct new outdoor rectangular fields to future parks where opportunities exist,
such as at a future sports complex.
b. Explore partnership opportunities to meet field needs such as working with
school boards to enhance the quality of school fields (including adding lighting
and other amenities), permit additional school fields, or partner with other
landowners such as OPG and the private sector to construct new fields.
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Figure 13: Distribution of Rectangular Fields
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4.11 Ball Diamonds
Current Supply
Clarington has a total of 26 ball diamonds, which includes seven hardball and 19
softball diamonds. Each lit diamond is considered to be equivalent to 1.5 unlit diamonds
due to their extended playing capacity. With five lit hardball and five lit softball
diamonds, the Municipality has an effective supply of 31 unlit equivalent ball diamonds.
The Municipality also permits six school ball diamonds, yielding a total of 37 unlit
equivalent fields (Figure 14). The Municipal supply includes Clarington’s newest lit
hardball diamond at the Diane Hamre Recreation Complex, which was recommended
through the Municipality’s 2020 Outdoor Recreation Needs Assessment. The size,
design and availability of amenities at ball diamond s owned or permitted by the
Municipality vary by location, which may influence use and ability to accommodate
certain users, particularly adult ball groups. Excluded from the supply are two ball
diamonds at Harvey Jackson Park and two diamonds at Solina Pa rk, which are not
permitted by the Municipality.
Market Conditions
Key trends in baseball and related sports include the following:
• Participation in baseball has been experiencing a resurgence as Baseball
Ontario reported that there were nearly 16,000 competitive participants in 2019,
which was a growth of 36% compared to 2009, although these figures exclude
recreational/house leagues and non-affiliated ball groups. As a result, actual
participation figures are greater.
• The Eastern Baseball Association, which is the regional affiliate that includes the
Clarington Baseball Association, increased by 48% between 2009 and 2019.
Consultation with ball diamond organizations found requests to increase the supply of
ball diamonds in Clarington to allow groups to accommodate new players; some groups
reported that they had to turn away players or teams because of limited diamond
availability and others indicated that players have gone to play in adjacent
municipalities. Groups expressed that increasing the number of ball diamonds would
also allow for a better distribution of scheduling at different locations to ensure that
diamonds have sufficient time for maintenance and recovery. As a result, some groups
mentioned that the current intensity of use has impacted field conditions, particularly if
diamonds are used for special events. Suggestions to improve quality included
enhanced drainage, lighting, and other amenities such as washrooms, fencing, and
screening. Larger ball diamonds were also suggested to accommodate adult ball
groups.
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Ball Diamond Utilization
The Municipality’s booking data identified that the diamonds were booked for 6,885
hours in 2023, which includes 381 hours permitted at school diamonds. The total
number of hours used represents a decrease of 6% (or 511 hours) from 2018, which
had 7,396 hours booked. The decline in ball diamond usage may be somewhat
attributable to the impact of the COVID-19 pandemic as well as due to a sharp drop in
the use of the ball diamond at Longworth Park; it is known that there are some quality
issues at this location, which may make it not desirable for rentals. There are also
diamonds with other constraints that limited their programmability including those that
are located at Neighbourhood Parks that do not have on -site parking, or undersized
diamonds that are not suitable for adult play. The Municipality also stopped permitting
some school ball diamonds. The most used location in 2023 was one of the ball
diamonds at Garnet B. Rickard Recreation Complex, which had 1,141 hours booked.
Identifying Future Ball Diamond Needs
Based upon the research conducted for this Master Plan, Clarington should continue to
target one diamond per 100 participants. The Municipality has collected some
registration data, but it is not adequate at this time to apply the participant-based target.
As a result, a population-based metric can be used, which is common in municipalities
that do not regularly collect participation figures. Clarington is currently providing a
service level of one ball diamond per 3,000 residents, which is higher compared to the
benchmark average of one per 4,505 residents. Lowering the level of service to match
the benchmark average is not recommended at this time given that organizations have
expressed the desire for more access to quality ball diamonds Clarington. As a result,
the Municipality should continue to maintain the current level of service at one ball
diamond per 3,000 residents. Based on the recommended target, Clarington will need
to add 17 unlit equivalent diamonds (or 11 lit ball diamonds by the end of the
planning period) (Table 15).
Table 15: Projected Ball Diamond Needs, 2026 to 2036
2026 2031 2036
Projected Population 123,730 143,970 162,640
Number of Ball Diamonds Required
(Based on 1 diamond per 3,000 residents) 41.0 48.0 54.0
Additional Ball Diamonds Needed
(Based on a supply of 37 unlit equivalent diamonds) 4.0 11.0 17.0
Meeting Future Ball Diamond Needs
Due to the evolving demographics of Clarington and the potential for change in demand
for ball diamonds, the Municipality should regularly monitor diamond needs and adjust,
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if required, recommended ball diamond needs as part of future updates to this Master
Plan.
The Municipality has identified locations for three new ball diamonds at future parks
within its Secondary Plan Areas, although these plans preceded amendments to the
Planning Act because of Bill 23. These changes will result in smaller park sizes within
the Secondary Plan Areas and limited opportunities to provide new ball diamonds,
unless the Municipality purchases or negotiates additional parkland within these areas
to support ball diamond development. The following strategy is recommended to
address the need for 17 unlit ball diamond equivalents to meet Clarington’s future ball
diamond needs:
• Identify suitable ball diamonds to add lighting to extend playing capacity ,
which is supported by the Municipality’s Corporate Climate Action Plan. The 2020
Outdoor Recreation Needs Assessment study recommended lighting the hardball
diamonds at Longworth Park and Penfound Park, which have not yet been
implemented but continues to be supported by this Master Plan; this strategy
would add one unlit equivalent ball diamond to the supply and alleviate pressure
for adult hardball diamonds.
• Evaluate opportunities to improve the current supply such as addressing
drainage and grading. Replacing, modernizing, or adding amenities to support
the use of the diamonds should also be considered including, but not limited to,
paved pathways, fencing, player and spectator seating, parking, sunscreens,
diamond lining, and temporary or permanent washrooms. Adding field irrigation
or converting outfields to artificial turf could also be considered to enhance turf
quality and durability.
• Construct new ball diamonds at future parks. As previously mentioned, the
Municipality plans to acquire land for a Community Park in the future Soper Hills
Secondary Plan Area, which is currently being prepared. Depending on its size, it
could be large enough to accommodate two lit ball diamonds, equivalent to three
unlit diamonds, although it is recognized that there is also a need for outdoor
rectangular fields as well as other outdoor recreation amenities. In consultation
with the community and stakeholders, specific facility needs for this Community
Park should be reconfirmed prior to development. The Municipality should also
aim to construct up to two new diamonds at other future parks to bolster
distribution.
• This Master Plan recommends that the Municipality secure a minimum of 30
hectares of land to construct a sports complex that could potentially
accommodate four lit ball diamonds (among other sports facilities), which is
equivalent to six unlit diamonds.
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• Pursue partnership opportunities with non-municipal landowners (e.g., OPG,
private landowners, etc.) to construct new ball diamonds.
• There is also a desire for both adult and hardball diamonds. Pressure for
both adult and hardball diamonds will be somewhat alleviated through the
completion of the new lit hardball diamond at Newcastle Community Park, as well
as through enhancements to other diamond locations. Monitoring the use of the
new Newcastle diamond and undertaken enhancements will provide the
Municipality with better insight into future adult and hardball needs.
Recommendations
37. Construct up to 17 unlit equivalent ball diamonds (equivalent to 11 lit ball
diamonds) by 2036 in the following manner:
a. Investigate suitable locations to add lighting to existing ball diamonds to
increase playing capacity. Candidate sites should have regard for minimum
setback distances from adjacent land uses and the use LED lighting that
produces sharp lighting cutoff.
b. Identify and prioritize enhancements to existing ball diamonds to improve
utilization including, but not limited to, addressing drainage and grading,
irrigating outfields, and adding, replacing, or modernizing amenities to support
ball diamond use such as paved pathways, lighting, fencing, spectator seating,
washrooms, parking, sunscreens, and lining. Consultation with ball diamond
users is recommended.
c. Direct the majority of new ball diamonds to future Municipal Wide Parks (such
as at a sports complex) or Community Parks to create multi -diamond sites with
amenities to support use such as field lighting and parking ; new
Neighbourhood Parks of sufficient size acquired in Secondary Plan Areas
through parkland dedication, purchase of lands, and or a combination of these,
should also be pursued to support localized playing opportunities.
d. Pursue partnerships to construct new diamonds, or secure access to existing
diamonds, to meet needs, including school boards, OPG, private landowners,
etc.
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Figure 14: Distribution of Ball Diamonds
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4.12 Cricket Fields
Current Supply
In 2023, the Municipality converted the soccer field at
Courtice Memorial Park to a cricket field. While it is
not a full-size field, the cricket pitch is located in the
centre of the park that can be used for modified
games and practices.
Market Conditions
Interest in cricket has been growing across Canada .
Key trends in cricket include the following:
• The popularity of cricket is being driven by
immigration from countries where the sport is
played such as South Asia and the Caribbean.
• Cricket Canada estimates that there are
approximately 130,000 players and 820 clubs
across the country, with many based in the
Greater Toronto and Hamilton Area (GTHA).
• There are multiple formats/styles of play that
vary in rules and in duration. The most common ones being long-format (most
common for competitive games played over eight hours), short-format (most
commonly in Canada played over one to four hours, usually in the form of
T20/T25), and tape ball cricket (using a tennis ball wrapped in tape to increase
weight and does not require the use of safety equipment).
Courtice Memorial Park
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Monitor Additional Cricket Field Needs
In the last number of years, Clarington had been experiencing demand for cricket. In
response, the Municipality opened its first field in August 2023. Initial impressions from
the cricket community are positive as it provides them with a dedicated place to play.
There has not been sufficient time to collect meaningful booking data to suggest
whether the field is meeting community needs as it has been open for approximately
one year, including several months during the winter.
The 2020 ORNO recommended a target of one cricket field per 100,000 residents,
which aligns with targets established in other GTHA municipalities. This would suggest
that the field at Courtice Memorial Park should be sufficient to satisfy needs, although it
is recognized that it is not a full-size field (a typical cricket field is approximately two
hectares in area). The Municipality has already been exploring locations for additional
fields by looking at potentially repurposing underutilized sports fields ; providing a
dedicated cricket field at a future sports complex could also be considered, although this
would be a long-term opportunity. The recommended service target suggests that only
one location is required to meet needs in Clarington. Should there be a suitable site to
provide a larger cricket field, it should be programmed as the primary location, while the
existing location at Courtice Memorial Park could be repurposed back to a rectangular
sports field to align with the recommended provision target, although field needs would
need to be reconfirmed prior to this process as it could also be used to a ccommodate
cricket practices/overflow bookings, depending on demand.
Recommendations
38. Identify a suitable site for a full-size cricket field to be used as the primary
location for rentals. Once a suitable site has been established, monitor usage
(including other sports field demand) to determine the future of the cricket field
at Courtice Memorial Park.
4.13 Outdoor Tennis Courts
Current Supply
The Municipality provides 15 tennis courts that all feature a painted acrylic surface and
fencing, four courts have lighting for extended play in the evening (Figure 15). Included
in this supply are two lit tennis courts that are exclusively used by the Bowmanville
Tennis Club, which are located at the Clarington Beech Centre, which is home to the
Bowmanville Older Adult Association. The Bowmanville Tennis Club provides l essons,
events, and tournaments to its membership. The Municipality’s supply includes two new
lit tennis courts at the Diane Hamre Recreation Complex and two new lit courts at the
South Courtice Arena.
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Market Conditions
Tennis has been experiencing a resurgence over the past several years. Key trends in
outdoor tennis include the following:
• Tennis Canada reported that 6.6 million Canadians played tennis at least once in
2018, a growth of more than 23% since 2014. Nearly 3 million Canadians are
frequent players – those who play at least once a week during the tennis season
– which is twice as many compared to 2014. 8, 9
• The popularity of tennis can be attributed to the success of Canadian men and
women competing at the professional level, the growing segment of baby
boomers that seek social, and, to some degree, lower impact activities and
emphasis being placed on promoting the sport at the grassroots level .
Locally, public requests were made for lighting Clarington’s existing tennis courts.
Resurfacing aging tennis courts was also suggested. Nearly half (46%) of community
survey respondents supported additional investment in the Municipality’s tennis courts.
New Opportunities for Outdoor Tennis Courts
Based upon the research conducted for this Master Plan, i t is recommended that the
Municipality target one per 5,000 residents for tennis courts, which aligns with targets
used in municipalities throughout the GTHA. The Municipality is currently providing
tennis courts at a rate of one per 7,250 residents, meaning that Clarington is
underserved by its own standard. By 2036, Clarington will require 17 additional
outdoor tennis courts – 10 in Bowmanville, four in Courtice, two in Newcastle and one
in the rural area/Orono (Table 16). While adding nine additional tennis courts in the
short-term may be challenging, the Municipality should pursue opportunities and, where
necessary, some of these courts could result in a timing more closely tied to provision in
the medium-term.
8 Tennis Canada. 2018 Annual Report.
9 Charlton Strategic Research. 2014 Canadian Tennis Brand Health Study.
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Table 16: Projected Tennis Court Needs by Community
Timing for Development
Community Current
Supply
Projected
2036
Supply*
Short-Term
2025 – 2026
Medium-Term
2027 – 2031
Long-Term
2032 – 2036
Bowmanville 6 16 (+10) +6 +2 +2
Courtice 4 8 (+4) +2 +2 0
Newcastle 2 4 (+2) 0 +2 0
Rural/Orono 3 4 (+1) +1 0 0
Total 15 32 (+17) +9 +6 +2
*Projected 2036 supply based on a recommended target of one per 5,000 residents.
Best practices dictate that tennis courts are best located in pods of two to facilitate
simultaneous play (although one court may be appropriate in some areas to address a
gap or where the level of use may be lower). The following strategy is recommended to
address tennis court needs in each geographic area. To address these needs, new
tennis courts are recommended to be accommodated at the following parks to meet
service level needs as well as to bolster the geographic distribution of courts (alternative
locations may be identified by the Municipality as opportunities become available):
• Construct 10 tennis courts at five parks in Bowmanville (+10). The Municipality
should also work with the Bowmanville Tennis Club to monitor membership levels
to determine if/when additional club-courts are required. As a general guide, club
courts are provided at a rate of one per 50 to 75 members to reflect the growing
interest in the sport (and thus greater demand for court time) and to align with
targets used in other communities.
• Construct four additional tennis courts in Courtice (+4).
• Construct two tennis courts at one park in Newcastle (+2).
• Construct one tennis court in the rural area, potentially at Zion Park or Kendal
Park (+1). An additional tennis court in the rural area could be required if one
tennis court at Solina Park is replaced with an outdoor basketball court, as
recommended in this Master Plan.
The design of tennis courts can influence the level of use and as a result, updating
aging tennis courts is recommended. This can be achieved through court resurfacing,
which was a request heard through the consultation process. It is the Municipality’s
standard to provide acrylic coating at all tennis court locations, which should be carr ied
forward through all future designs. High level observations also suggest that court
surfacing could be undertaken at Avondale Park, Green Park, and Solina Park.
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Recommendations
39. Construct 17 new outdoor tennis courts by 2036 to address service gaps and
population growth, particularly in emerging Secondary Plan Areas where they
can feasibly be accommodated, in the following manner:
a. Construct 10 tennis courts at five parks in Bowmanville (+10). The Municipality
should engage the Bowmanville Tennis club to monitor membership levels to
determine if/when additional club-courts are required; club-courts should be
provided at a rate of one per 50 to 75 members.
b. Construct four tennis courts at two parks in Courtice (+4).
c. Construct two tennis courts at a park in Newcastle (+2).
d. Construct one tennis court in the rural area (+1).
40. Establish a plan to resurface aging tennis courts with acrylic coating.
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Figure 15: Distribution of Tennis Courts
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4.14 Outdoor Pickleball Courts
Current Supply
There are 12 outdoor pickleball courts in Clarington,
including 10 dedicated courts and two shared courts
located on the lacrosse box at Clarington Fields
(portable nets required) (Figure 16). The Municipality
has recently been responding to a growing demand
for pickleball courts through the conversion of tennis
courts at Stuart Park and Orono Park. Like
Clarington’s tennis courts, dedicated pickleball courts
features a painted acrylic surface and fencing. The
Municipality’s supply includes the three new lit
pickleball courts at the Diane Hamre Recreation
Complex. In addition to the Municipality’s outdoor
supply, the Diane Hamre Recreation Complex has
permanent line markings for four indoor pickleball
courts.
Market Conditions
Pickleball is the fastest growing sport in North America, and it continues to gain in
popularity. Key trends in pickleball include the following:
• While it is commonly played among older adults, youth and adults are also taking
up the sport as interest grows and more opportunities and locations become
available to play.
• As the sport matures in Canada, there will be a greater demand for dedicated
pickleball courts for competitive and recreational play.
• Recognizing the social nature of the sport, noise concerns, and the desire for
high quality courts that can support league play and tournaments, communities
are constructing (or recently completed) major pickleball court complexes with
eight or more courts, including Peterborough, Barrie, Markham, Hamilton, Whitby,
and Vaughan.
Through the consultation process, several requests were made for outdoor pickleball
courts in Clarington, particularly dedicated courts to minimize user conflicts with tennis
users. 42% of survey respondents supported more investment in outdoor pickleball
courts.
Stuart Park
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Responding to the Demand for Pickleball Courts
Municipalities have responded to the high growth of the activity by providing outdoor
pickleball courts on an as needed basis to respond to local demand, most commonly by
multi-lining tennis courts to create shared facilities. This approach has allowed
communities to respond quickly, although it has raised challenges between tennis and
pickleball users competing for court time. Now that pickleball has become well
established and continues to demonstrate growth, it is recommended that they be
provided as dedicated courts. Communities are also beginning to adopt service targets
to guide future needs.
Research undertaken by Pickleball British Columbia, which has been a pioneer in
growing the sport, recommends a target of one per 10,000 residents, which matches
Clarington’s current service level (one per 9,696 residents). However, municipalities
such as Barrie, Halton Hills, and Burlington are targeting one court per 5,000 residents
to recognize the local popularity of the sport; the target also matches the rate for tennis
courts to ensure it receives equal representation in the community.
Recognizing the local demand for pickleball courts in Clarington, and the distribution of
residents in the Municipality, a target of one per 5,000 residents is recommended. The
recommended target indicates that Clarington requires a total of 32 outdoor
pickleball courts by 2036, 20 more than is currently required (Table 17). The bulk of
the need would be in the Bowmanville area where a large portion of future residents are
expected and much of this would be provided through a dedicated pickleball complex .
Table 17: Projected Pickleball Court Needs by Community, 2026 to 2031
Timing for Development
Community Current
Supply
Projected
2036
Supply**
Short-Term
2025 – 2026
Medium-Term
2027 – 2031
Long-Term
2032 – 2036
Bowmanville 2* 16 (+14) +10 +2 +2
Courtice 4 8 (+4) +2 +1 +1
Newcastle 3 4 (+1) 0 0 +1
Rural/Orono 3 4 (+1) +1 0 0
Total 12 32 (+20) +13 +3 +4
*Supply includes two courts in the lacrosse box at Clarington Fields (portable nets required).
**Projected 2036 supply based on a recommended target of one per 5,000 residents.
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Consistent with the Municipality’s current practice, dedicated outdoor pickleball
courts are recommended to avoid conflicts with tennis users. Between two and three
courts should be provided in each location to support simultaneous games and reflect
the social nature of the game. There are also examples of pickleball courts located
adjacent to tennis courts given the similarities in sports, players, and ability to share
amenities.
It is also important to consider appropriate setback distances. A review of facility
guidelines and best practices in other municipalities suggest that pickleball courts
should be located between 20 to 30 metres from residential lot lines, although these
guidelines predate the growing noise concerns faced in many communities.
The British Columbia Recreation and Parks Association recommends setbacks based
on the number of courts. For two pickleball courts, the preferred minimum setback is 50
metres, and 75 to 115 metres for four or more pickleball courts. Reduced setbacks are
permitted if noise attenuation measures are used such as landscaping, berms, and
noise dampening screens.
With growing noise concerns and shrinking park sizes due to evolving legislation
regarding parkland dedication, there will be fewer opportunities to construct pickleball
courts. To alleviate pressure, there is a growing trend to construct large-scale,
multi-court facilities. For example, Whitby is planning to construct a 14-court complex,
Hamilton and Barrie provide a 12-court complex, and Markham has an eight-court
complex. This approach addresses users’ desire for quality playing experiences and
challenges with finding appropriate locations for these types of facilities. An outdoor
pickleball complex was recommended in the 2020 Outdoor Recreation Needs
Assessment, which has not yet been implemented but continues to be supported by
research undertaken for this Master Plan.
Based on projected pickleball court needs, identified gap areas, opportunities to create
a centralized pickleball complex the potential to locate pickleball courts adjacent to
existing tennis courts, and best practices in enhanced setbacks, the following strategy is
recommended:
• Construct 14 dedicated pickleball courts in Bowmanville, including six to eight
courts at a Municipal Wide or Community Park to create a pickleball complex
(potentially operated with a sports organization ). Remaining courts should be
located at existing and future parks, potentially at parks serving secondary plan
areas (+14).
• Construct four dedicated pickleball courts at two neighbourhood parks in Courtice
(+4).
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• Construct one dedicated court at a neighborhood park in Newcastle, potentially in
the Newcastle Village Secondary Plan Area . A second court should be
considered to support simultaneous play (+1 to +2).
• Construct one dedicated pickleball court at a park in the rural area . A second
court should be considered to support simultaneous play (+1 to +2).
Recommendations
41. Construct 20 dedicated pickleball courts by 2036 to address service gaps and
population growth, particularly in emerging Secondary Plan Areas where they
can feasibly be accommodated, in the following manner:
a. Construct 14 dedicated pickleball courts in Bowmanville, including six to eight
courts at a Municipal Wide or Community Park to create a pickleball complex
(potentially operated with a sports organization). Remaining courts should be
located at existing and future parks, potentially at parks serving secondary plan
areas (+14).
b. Construct four dedicated pickleball courts in Courtice, potentially two courts at
a neighbourhood park in the north end and two courts at a neighbourhood park
in the south end (+4).
c. Construct one dedicated pickleball court at a neighborhood park in Newcastle.
A second court may be considered to support simultaneous play (+1 to +2).
d. Construct one dedicated pickleball court at a park in the rural area . A second
court may be considered to support simultaneous play (+1 to +2).
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Figure 16: Distribution of Pickleball Courts
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4.15 Basketball Courts
Current Supply
There are 22 basketball courts in Clarington’s parks, consisting of
11 full courts and 11 half courts (Figure 17). Some of Clarington’s
basketball courts feature a painted acrylic surface such as at Stuart
Park, Soper Creek Park, and Tyrone Park, while others are asphalt
pads; the half court at Solina Park uses a Flex Court system with
interlocking plastic tiles over asphalt. The Municipality’s basketball
court supply is complemented by school properties which also
contain outdoor posts and hoops; court configuration, quality, and
level of access at these facilities vary.
Market Conditions
Key trends in basketball courts include the following:
• The use of basketball courts was positively impacted by the COVID -19 pandemic
as it is an outdoor activity that could be played with appropriate social distancing.
• Basketball is popular with boys and girls (including newcomer children and youth)
due to its international appeal and the Toronto Raptors championship in 2019.
• Basketball is an affordable and open sport that can be played by most ages and
abilities, both individually and as a group/team.
The community survey found that 8% of respondents indicated that they have
participated in basketball. Half (51%) of survey respondents support additional
investments in basketball courts, ranking 26th of 41 facility types.
Building up Clarington’s Basketball Court Supply
Clarington is currently providing basketball courts at a rate of one per 634 youth (ages
10 to 19), who are the primary users of these facilities. The Municipality’s level of
service is higher compared to targets established in many GTHA communities (one per
700 youth), although it recognizes the Municipality’s commitment to providing a strong
supply of walkable amenities geared towards this age group. Targeting basketball courts
at one per 650 youth is recommended, aligning with the current service level and
recognizing the large geography of Clarington , while also bringing the Municipality
closer to targets in comparable municipalities.
Stuart Park
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Table 18: Projected Basketball Court Needs by Community, 2026 to 2031
Timing for Development
Community Current
Supply
Projected
2036
Supply*
Short-Term
2025 – 2026
Medium-Term
2027 – 2031
Long-Term
2032 – 2036
Bowmanville 10 15 (+5) +1 +2 +2
Courtice 7 7 (+0) 0 0 0
Newcastle 3 4 (+1) 0 0 +1
Rural/Orono 2 4 (+2) +2 0 0
Total 22 30 (+8) +3 +2 +3
*Projected basketball court supply based on a recommended target of one per 650 youth (ages 10 to 19).
If the proportion of youth remains the same, it is estimated that there will be
approximately 20,000 youth in Clarington by the end of the planning period. To meet
the Municipality’s target, there will be a need to construct eight new basketball
courts by 2036 (Table 18). An analysis based on projected youth population for each
community suggests that the greatest need will be in Bowmanville, particularly in
emerging Secondary Plan Areas, followed by the rural/Orono area and Newcastle. To
meet the recommended service target, the following strategy is recommended.
• Construct five basketball courts in Bowmanville (+5).
• Construct one basketball court in the Newcastle (+1).
• Construct two basketball courts at parks in the rural area (+2).
• While the recommended service target suggests that the supply of basketball
courts in Courtice is sufficient, the Municipality should consider adding at least
one new basketball court in the north end of the community to strengthen
distribution and address a geographic gap given that there are currently no public
outdoor basketball courts north of Nash Road.
Enlarging and Renewing Basketball Courts
Clarington has been proactive in renewing its aging basketball courts such as at Stuart
Park. The Municipality is also reinvesting in the court at the South Courtice Arena; this
court may need to be relocated (within the site or at another location in Courtice) to
accommodate the new twin pad arena being recommended at this location through this
Master Plan. Resurfacing and replacing aging components can enhance playing
experiences and provides an opportunity to accommodate multiple activities such as
ball hockey. Enlarging half courts or undersized shooting pads can also increase use,
provided there is sufficient space available.
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Continuing to examine opportunities to renew or enlarge Clarington’s existing basketball
courts is recommended; ensuring that all courts have painted lining is also encouraged.
Based on a high-level scan of existing locations, potential opportunities for renewal or
enhancement include, but are not limited to, Andrew Parkette, Rosswell Park, Green
Park, Pearce Park, Tyrone Park, Soper Creek Park, and Glenabby Park.
Recommendations
42. Provide eight multi-use courts for activities such as basketball and ball hockey in
the following manner, preferably at parks in emerging Secondary Plan Areas
where they can be feasibly accommodated:
a. Construct five multi-use courts in Bowmanville (+5).
b. Construct one multi-use court in Newcastle (+1).
c. Construct two multi-use courts in the rural area (+2).
43. Investigate opportunities to provide one multi -use court in the north end of
Courtice (north of Nash Road) to address a service gap and strengthen
geographic distribution.
44. To accommodate two new ice pads at the South Courtice Arena, relocate the
existing multi-use court to another location within the site or to another park in
Courtice.
45. At the time of basketball court replacement, investigate the feasibility of
enlarging half courts or undersized shooting pads to full -size multi-use courts.
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Figure 17: Distribution of Basketball Courts
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4.16 Outdoor Splash Pads and Outdoor Pools
Current Supply
There are 16 splash pads located at parks throughout
Clarington that feature a variety of user-activated
features during the warmer summer months (Figure
18). The Municipality’s splash pads are
complemented by an outdoor pool at Orono Park.
Market Conditions
Outdoor aquatic facilities are important community
amenities to help residents cool down on hot summer
days. Key trends in outdoor splash pads and pools
include the following:
• The use of outdoor pools is influence by several factors such as short operating
seasons, weather conditions, staffing, and the increasing supply of indoor public
pools and backyard pools.
• Municipal outdoor pools are aging, and some communities have reinvested in
their aging pools to ensure that affordable outdoor swimming opportunities are
available to residents, including those who may not have access to indoor
swimming pools, particularly as residents seek respite from increasingly hotter
summers.
• Some municipalities have explored phasing out aging outdoor swimming pools in
favour of splash pads, which are more cost effective to build and operate ,
although it is recognized that they do not provide the same experience as
outdoor pools.
The community engagement process found that there is a desire to enhance the
Municipality’s splash pads to create more frequent and engaging playing experiences;
70% of survey respondents supported additional investment in splash pads, ranking 11 th
out of 41 facility types. Limited input was received about outdoor pools, although one
request was made for an outdoor pool in Newcastle; 62% of survey respondents
supported additional public investment in outdoor swimming pools, which ranked 16 th.
Increasing the Splash Pad Supply
The research conducted for this Master Plan supports a provision target of one splash
pad per 700 children aged 0 to 9 years. The 2021 Census reported that 13% of the
Municipality’s population were children between the ages of 0 and 9, which are the
primary users of splash pads. Applying this capture rate to the current population
Rickard Neighbourhood Park
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suggests that there are currently 15,125 children and based on the current supply,
Clarington is providing splash pads at a rate of one per 945 children. This is lower
compared to the recommended service target. If the proportion of children remains the
same, it is estimated that there will be more than 21,000 children in Clarington by the
end of the planning period. To meet the Municipality’s target, there will be a need to
construct 14 new splash pads by 2036 (Table 19).
Table 19: Projected Splash Pad Needs, 2026 to 2036
Timing for Development
Community Current
Supply
Projected
2036
Supply*
Short-Term
2025 – 2026
Medium-Term
2027 – 2031
Long-Term
2032 – 2036
Bowmanville 9 15 (+6) +2 +2 +2
Courtice 3 7 (+4) +3 +1 0
Newcastle 3 4 (+1) 0 0 +1
Rural/Orono 1 4 (+3) +3 0 0
Total 16 30 (+14) +8 +3 +3
*Projected splash pad needs based on a recommended target of one per 700 children (ages 0 to 9).
It is the Municipality’s practice to construct neighbourhood-level splash pads to provide
walkable community amenities. This approach continues to be supported by the Master
Plan to assist the Municipality in creating complete communities, although it will be
important to recognize that this may come at a higher cost due to the need to maintain
more facilities, which may need to be increased as there is a desire for more engaging
and unique designs. The provision of fresh water/water-to-waste splash pad systems
are preferred due to the high cost of recirculating systems as it relates to initial
construction, staffing and ongoing maintenance.
The following strategy is recommended to address future splash pad needs ; a focus
should be:
• Construct six splash pads in Bowmanville , with a minimum of one serving the
central area of the community (+6).
• Construct four splash pads in Courtice, with a minimum of one serving the west
or north area of the community (+4).
• Construct one splash pad in Newcastle (+1).
• Explore the feasibility of constructing up to three small-scale splash pads at rural
parks (+3).
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Cooling Stations in Intensification Areas
With future population growth expected in Clarington’s MTSAs, providing outdoor
waterplay spaces, or ‘cooling stations’ that are publicly accessible will be important to
provide much needed relief from urban heat island effect. On this basis, the Municipality
should provide at least one small-scale cooling spray station at a park within or near
Clarington’s two MTSAs as opportunities become available. This is a best practice in
other urbanizing municipalities that are experiencing climate change.
Small-scale cooling spray stations may have fewer spray features than Clarington’s
traditional splash pads given that the size of the installation will be influenced by the
size of the park that it is located in. For example, these cooling spray stations may have
fewer spray nozzles or post that are integrated within a hardscape plaza or incorporated
as part of a public art display, water fountains, boulders, or other feature s.
Monitoring the use of the Orono Park Pool
The outdoor pool at Orono Park is an important
recreational asset to the rural community and is one that
has served generations. The operating window of the pool
is short as it is open from July to August, like most outdoor
pools, although operating days may vary due to the
weather conditions. It is an important gathering place to
cool off in the summer, especially for rural residents who
do not have transportation to access the nearest indoor
swimming pool at the Diane Hamre Recreation
Complex in Newcastle, which is about a 10-minute
drive from Orono.
No new outdoor pools are recommended in Clarington during the planning period. The
decision to continue operating the outdoor pool in Orono should be based on the belief
that the benefits of having an outdoor swimming opportunity outweighs the investment
required to provide this amenity for a short-operating season. Other municipalities have
rationalized the continued provision of outdoor pools through this lens, especially to
provide respite from the effects of climate change.
To make an informed decision on the future of the outdoor pool, the Municipality should
undertake a facility condition assessment to understand its remaining lifespan and the
capital investment required to continue to maintain th e outdoor pool in Orono. A cost
benefit analysis should also be undertaken to inform the decision-making process that
takes into consideration key metrics such as participation and the actual number of
operating days during the season, recognizing that unfavourable weather events ha ve
impacted programming.
Orono Park
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Recommendations
46. Construct 14 new splash pads by 2036 in the following manner at parks in areas
serving households with children, including in emerging Secondary Plan Areas:
a. Construct six splash pads in Bowmanville , with a minimum of one serving the
central area of the community (+6).
b. Construct four splash pads in Courtice, with a minimum of one serving the west
or north area of the community (+4).
c. Construct one splash pad in Newcastle (+1).
d. Explore the feasibility of constructing up to three small-scale splash pads in the
rural area (+3).
47. To complement the splash pad supply, provide a minimum of one cooling station
at a park in or near Clarington’s two MTSAs, which could feature a limited
number of spray nozzles integrated into the hardscape or as posts, or
incorporated as part of a public art display, water fountains, boulders, or other
feature.
48. Create a capital renewal plan for the outdoor pool and associated amenities at
Orono Park. A cost benefit analysis should be undertaken prior to making any
future capital decisions.
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Figure 18: Distribution of Splash Pads
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4.17 Skate Parks and Pump Tracks
Current Supply
Clarington provides five skate parks at the Courtice
Community Complex, Darlington Sports Centre,
Garnet B. Rickard Recreation Complex, Diane Hamre
Recreation Complex, and Orono Park (Figure 19).
This yields a service level of one per 23,269
residents, which is the highest level of service
compared to benchmark municipalities but recognizes
the geographically large area of Clarington .
Each location in Clarington features a range of skate
components, including ramps, edges, rails, stairs, elevation changes, bowls , and more.
The size and scale of skate parks vary by location, as well as the construction type. For
example, the skate parks at the Courtice Community Complex, Garnet B. Rickard
Recreation Complex, and Diane Hamre Recreation Complex were constructed from
concrete, while the skate parks at the Darlington Sports Centre and Orono Park have
modular components on a concrete pad.
Market Conditions
Skate parks provide youth and younger adults with a positive place to participate in
skateboarding, rollerblading, scootering, biking, and other wheeled action sports. Key
trends in skate parks include the following:
• Skate parks are popular locations for youth and young adults to engage in
physical activity and gather and socialize in a positive environment.
• The popularity of skate parks has resulted in the emergence of small-scale skate
zones in neighbourhood parks that feature a limited range of skate components
to serve residents who may not have access to community level skate parks. For
example, Burlington provides several skate zones within neighbourhood parks
that are often co-located with basketball courts, which are geared towards the
same target market and complement major skate parks.
Public requests were made for enhanced skate parks in Clarington. For example,
suggestions were made for improving the location at the Garnet B. Rickard Recreation
Complex as it is smaller compared to Clarington’s other locations . It also has limited
visibility within the site and there is a desire for amenities such as seating and shade to
create more inviting spaces. 41% of community survey respondents supported
additional investment in skate parks.
Courtice Community Complex
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Enhancing Clarington’s Skate Parks
The Master Plan assessment recommends providing
one skate park in each urban area, which is
consistent with other municipalities that share a
similar urban and rural geography. With the recent
completion of a new skate park in Newcastle, no new
skate parks are recommended during this planning
period. There are, however, opportunities to enhance
existing locations such as at the Garnet B. Rickard
Recreation Complex given that this skate park is not
as prominent or designed as comparable to
Clarington’s other skate parks in Courtice or
Newcastle. At the time of renewal, opportunities exist
to engage the skate community to identify areas of
enhancement, which may include, but not be limited to,
improving sightlines and safety, and features such as
lighting, seating, and other amenities.
Complementing Clarington’s major skate parks, s mall-scale skate zones with
introductory-level skate features should be explored at existing or future neighbourhood
parks. These features tend to be best located with other facilities such as basketball
courts as they are geared to the same youth target market. To complement existing
skate parks, the following development strategy is proposed to strengthen access and
allow novices to learn basic skills before using Clarington’s major skate park locations :
• Construct three skate zones at existing or future parks in Bowmanville, with some
potentially at future parks in Secondary Plan Areas (+3).
• Construct two skate zones at an existing or future park in Courtice, potentially
one serving the north end and one serving the south end (+2).
• Construct one skate zone at an existing or future park on the east side of
Newcastle (+1).
Example of a skate zone next to a basketball court
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Consider Opportunities for Pump Tracks
Pump tracks offer a variety of features for beginner to advanced users and include dirt
or paved ramps and jumps along a designated course. It is generally considered to be a
growth sport as more people seek activities that can be done individually or socially in
an unstructured format. The Municipality does not provide any pump tracks, although
some public requests were made for this type of facility in Clarington.
Pump tracks are becoming more common in many municipalities to respond to
demonstrated demand, which also aligns with a greater desire for a range of casual,
outdoor recreation activities. In Durham Region, pump tracks are available in Oshawa
and Uxbridge. They can also be found in Toronto, Mississauga, Milton, Orangeville,
Saugeen Shores, Georgina, and other communities.
From a provision perspective, they are often located adjacent to skate parks to create a
hub for wheeled action sports. A scan of existing skate parks in Clarington found that
they would not be suitable for a pump track due to site constraints. While a pump track
is not recommended at this time, demand for this amenity should be revisited as part of
a five-year update to this Master Plan.
Recommendations
49. Investigate, at the time of renewal, opportunities to enhance the skate park at
Garnet B. Rickard Recreation Complex to improve the user experience,
including, but not be limited to, improving visibility and supporting amenities .
50. Construct six skate zones with introductory-level features at existing or future
parks, potentially co-located with basketball courts, in the following manner:
a. Construct three skate zones in Bowmanville, with some potentially at future
Secondary Plan Areas (+3).
b. Construct two skate zones in Courtice, with one serving the north end and one
serving the south end (+2).
c. Construct one skate zone on the east side of Newcastle (+1).
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Figure 19: Distribution of Skate Parks
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4.18 Leash-Free Dog Parks
Current Supply
Clarington provides three leash -free dog parks in Courtice (South Courtice Arena),
Bowmanville (adjacent to the Harbour Conservation Area) and Newcastle (Diane Hamre
Recreation Complex) (Figure 20). All three locations feature two designated areas for
large and small dogs and amenities include on-site parking, seating, shade, signage,
and lighting.
Market Conditions
Leash-free dog parks provide owners with a controlled open area to exercise and
socialize with their dogs. Key trends in leash-free dog parks include the following:
• Leash-free dog parks contribute to sense of place and encourage community
interaction among residents who share a common interest.
• Leash-free dog parks are popular in urban areas as opportunities for dogs to run
freely may be limited within intensified residential areas, as well as in other areas
experiencing population growth.
Public suggestions were made to locate dog parks away from utility infrastructure such
as power lines and to provide greater enforcement to ensure the safety of dogs and
owners. 42% of community survey respondents supported additional investment in
leash-free dog parks.
Enhancing the Distribution of Leash-Free Dog Parks
There is no formal standard guiding the provision of leash-free dog parks but as the
population of dogs and the number of dog owners is expected to continue to grow, there
will be a need to strengthen geographic distribution of these important amenities. A
distributional analysis using a one-kilometre service area found that the Municipality’s
existing dog parks are primarily located in the south end of each urban area. With a
large portion of future population growth expected in Bowmanville’s north end, there will
be growing pressure for an off-leash dog park in this area. Research conducted for the
Master Plan supports the provision of a new leash-free dog park in Bowmanville’s north
end to address current and future needs in this gap area.
Previously, an off-leash dog park serving north Bowmanville was recommended in the
2020 Outdoor Recreation Needs Assessment. Staff explored a potential location at the
Bowmanville Valley Conservation Area; however, preliminary geotechnical and soil
investigations determined that the site may not be suitable for a leash -free dog park
given the site’s former landfill history. Staff are continuing to study the suitability of this
site at the time of preparing this Master Plan. Should it be confirmed that this site would
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not be suitable for an off-leash dog park, it is recommended that other sites be
evaluated based on the following site selection criteria:
• Located on Municipality property or on other lands through a long -term lease or
public access agreement (e.g., conservation authority, hydro corridor, etc.)
• A minimum area of 5,000 square metres (0.5 hectares).
• Accessible to the public year-round.
• Located on flat land with suitable soil quality, adequate drainage and devoid of
environmentally sensitive areas and other geotechnical hazards; they should not
be located along the waterfront.
• An appropriate setback from adjacent land uses. Best practices vary in other
municipalities from 15 metres to 50 metres. Setback distances may be reduced if
a separation buffer is used.
• On-site parking is preferred, although off-site parking may be suitable particularly
for compact leash-free dog parks serving intensification areas.
A future leash-free dog park should be designed like what is currently at Clarington’s
existing locations, which should include a large, fenced enclosure with separate areas
for large and small dogs. Supporting amenities may include, but are not limited to,
shade, seating, and water access. Lighting should also be contemplated, to allow for
extended use during the evenings, particularly given that daytime use during the
summer may be limiting due to climate change.
The north end of Courtice is a gap, although this area is served by the leash-free dog
park at the Harmony Valley Conservation Area in Oshawa, which is about a 10 -minute
drive for residents in this area. The existing leash-free dog park in Newcastle is also
expected to be sufficient to serve residents during the planning period.
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Serving Pet owners in Intensification Areas
With future population growth being directed towards Clarington’s two MTSAs, it can be
expected that there will be a need for more walkable off-leash dog parks in these high-
density areas as residents will have limited private personal space to exercise and
socialize with their dogs. As transit-oriented developments become more prevalent in
Clarington, a greater share of the Municipality’s population may not own private vehicles
and thus Clarington’s traditional leash free dog areas may not be accessible fo r some
urban residents.
The Municipality will need to be strategic in where and how new leash free dog parks
are provided to meet the needs of residents in Clarington’s MTSAs. A minimum of one
leash-free dog park should be in each MTSA area, although multiple sites are
encouraged as opportunities become available to facilitate walkable neighbourhoods
and to recognize the total population that these intensification areas are projected to
accommodate and the growing number of dog owners. The size of leash-free dog parks
within these areas will need to be more compact than Clarington’s traditional locations,
which is a best practice that other municipalities are providing in high density areas (a
minimum area of 500 square metres or 0.05 hectares). This should be complementary
to working with the development sector to provide pet-friendly amenity spaces.
Recommendations
51. Continue with establishing a new dog park in north Bowmanville with
consideration given to the site criteria identified in this Master Plan, including
property ownership, minimum size, public access, site condition, appropriate
setbacks, and parking. The design should be similar to what is available at
Clarington’s other locations, including a fenced enclosure with separate areas
for large and small dogs and supporting amenities such as shade, lighting and
seating.
52. Construct two compact leash-free dog parks in the Courtice and Bowmanville
MTSAs. The Municipality is also encouraged to work with the development
sector to create pet-friendly amenity spaces within all future developments.
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Figure 20: Distribution of Leash-Free Dog Parks
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4.19 Community Gardens
Current Supply
Clarington has three community garden locations with
a total of 112 plots, including two in Bowmanville at
the Liberty Allotment Gardens and the Bowmanville
Allotment Gardens. The third location is at the Diane
Hamre Recreation Complex in Newcastle (Figure 21).
Each location is operated and administered by a
volunteer organization that allocates plots to
gardeners for personal use, as well as community
plots where food is grown and distributed to those in
need, including food banks.
Market Conditions
Community gardens foster social interaction and
horticultural education. Key trends in community
gardens include the following:
• Community gardens are popular in urban
areas where residents may not have access to
personal gardening space, particularly in
intensification areas.
• The increasing cost of living, including rising
food prices, being experienced across Ontario
has placed a greater emphasis on food
security and sustainable food sources, further
contributing to the popularity of residents
growing their own food.
• The focus being placed on health and wellness
and healthy eating contributed to the
increasing demand for community gardening.
• Community gardens allow residents to
cultivate, preserve, and prepare cultural
produce.
Liberty Allotment Garden
Newcastle Community Garden
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Public requests were made for more community gardens in Clarington, with 60% of
community survey respondents supporting additional investment in this amenity, ranking
19th of 41 facility types.
New Community Gardens for Bowmanville and Courtice
Community gardens are provided based on local demand, particularly if there are
volunteers or a local organization willing to partner with the municipality to operate and
or maintain the facility. With an increasing interest in community gardening and outd oor
activities, together with an aging and diversifying population, additional community
gardening locations should be contemplated if there is a willing partner(s) to assist with
delivering the service. Expanding community gardening opportunities also aligns with
Clarington’s Corporate Climate Action Plan.
From a geographic perspective, Courtice is a gap area as it does not currently have a
municipal community garden, although one is provided by the Hope Fellowship Church.
Working with this organization to promote the use of this location is encouraged,
although the Municipality should also work with other community partners to establish a
community garden on municipal property to provide expanded community gardening
opportunities in Courtice.
The Bowmanville Allotment Garden on Haines Street is a temporary location that has
existed in its current location since 2011. While relocating the Bowmanville Allotment
Garden will not be required until expansion of the adjacent cemetery is required,
investigating suitable replacement sites is recommended. As a general guide, future
community garden locations should consider the following criteria:
• Soil quality is suitable for gardening.
• Sufficient sun exposure.
• Level grade.
• Adequate drainage.
• Access to amenities water, parking, transit, and active transportation.
• Free from hazards.
• Proximity to medium and high-density residential areas.
In addition to the site criteria, inclusive design should also be considered as part of the
development such as pathways and raised garden beds.
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Community Gardens in Intensification Areas
Clarington is expected to undergo residential intensification over the long-term,
particularly within designated MTSAs. Residents living within condominiums in these
areas will likely have limited to no private amenity space and thus, there will be a high
need for community gardening opportunities in these locations. To address these needs,
the Municipality should be prepared to respond through the provision of small -scale
community gardening locations, which may be smaller compared to existing sites,
depending on the size of the MTSA park, or providing them at parks that are within
walking distance to MTSAs. Working with the land development sector to establish
private amenity space, including rooftop gardens should also be explored.
Recommendations
53. Identify a permanent site to relocate the Bowmanville Allotment Gardens. Site
criteria for selecting a community garden location should include (but not be
limited to), soil quality, grade, sun exposure, drainage, access to amenities, free
of hazards, and proximity to medium and high-density residential areas.
Inclusive design should also be considered including pathways and raised
garden beds.
54. Establish a community garden in Courtice , which should be contingent on
working with a community partner to oversee daily operations. Site criteria for
selecting a community garden location should include (but not be limited to), soil
quality, grade, sun exposure, drainage, access to amenities, free of hazards,
and proximity to medium and high-density residential areas. Inclusive design
should also be considered, including pathways and raised garden beds.
55. Work with others to create and/or encourage the use of existing non-public
community gardens (e.g., churches) and with the development sector to create
private amenity space, including rooftop gardens in Clarington’s MTSAs.
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Figure 21: Distribution of Community Gardens
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4.20 Outdoor Fitness Equipment
Current Supply
Outdoor fitness equipment stations can be found at
Rickard Neighbourhood Park in Newcastle and at the
South Courtice Arena. Each location features several
fitness stations that engage users in a variety of
strength and cardio-based exercises. A new outdoor
fitness equipment location has been identified at the
future Bowmanville Park on the former Zoo Lands.
Market Conditions
Key trends in outdoor fitness equipment include the
following:
• Outdoor fitness equipment are popular amenities found throughout Europe and
the United States, and they are becoming more popular in Canadian
municipalities as more communities are offering these installations to encourage
no-cost, outdoor physical activities.
• Locations typically contain multiple pieces of equipment for free public use such
as in Clarington’s existing locations. They tend to be best suited along trails, at
community facilities, or other high traffic locations.
Requests were made for more outdoor fitness equipment in Clarington. More than half
(54%) of respondents from the community survey support additional investment in
outdoor fitness equipment, which ranked 22nd out of 41 facility types.
Strengthen the Distribution of Outdoor Fitness Equipment
There is no provision target for outdoor fitness equipment as they are typically
considered where opportunities exist as part of park design or renewal, as well as to
respond to public requests. As a best practice, outdoor fitness equipment is typically
provided in prominent locations to encourage physical activity such as a t major parks
that have other active recreation amenities or along trails and pathways – either co-
located together in a single location such as at Rickard Neighbourhood Park and South
Courtice Arena, or through fitness trails to facilitate interval training.
The Municipality should continue to construct outdoor fitness equipment within its parks
to improve geographic distribution to ensure that there are free outdoor opportunities to
get active. Strategic locations should be considered, with an emphasis on locating
installations in high traffic areas. As a starting point, consideration should be given to
constructing outdoor fitness equipment along the waterfront trail in Newcastle and
Rickard Neighbourhood Park
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Bowmanville (to be reconfirmed through the Waterfront Strategy). A minimum of two
outdoor fitness equipment locations should also be installed at future parks in
Secondary Plan Areas in Courtice. Other locations may be considered at the
Municipality’s discretion where space is available, such as in emerging MTSAs.
Recommendations
56. Install outdoor fitness equipment at four parks to strengthen geographic
distribution. New installations should be at parks in high traffic areas such as
along the waterfront trail in Newcastle and Bowmanville (to be reconfirmed
through the Waterfront Strategy), Municipal Wide or Community Parks, or in gap
areas including at two parks in Courtice’s Secondary Plan Areas. Long-term
opportunities to provide outdoor fitness equipment in MTSAs should also be
explored.
4.21 Playgrounds
Current Supply
Clarington provides playgrounds at 63 parks across
the Municipality that vary in design, size, and range of
components (Figure 22). Depending on the location
and the type of park, a playground may feature
distinct junior and senior play structures and swing
sets (including for adults). Some locations also
feature accessible components such as ramps and
braille, as well as interactive toys such as musical
instruments and mobile games. Play structures are
also found at schools.
Market Conditions
Playgrounds are highly desirable park amenities that young families seek in their
neighbourhoods as they benefit early childhood development, foster cognitive
development and social skills, and encourage physical activity. Key trends in
playgrounds include the following:
• Playground designs have evolved overtime from traditional play equipment (e.g.,
swings, slides, etc.) to creative structures that facilitate environments that
encourage users to use their imagination to create unique play experiences.
• Some playgrounds are designed to encourage risky play through climbing and
exploring, which have been found to contribute to cognitive development.
Enniskillen Park
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• Leading design elements include vibrant colours, interactive play features,
thematic designs, and components that are barrier free and stimulate the senses
such as musical instruments, as well as accessible surface treatments such as
engineered wood fibre and rubber.
Public requests were made for updating playground equipment, with suggestions made
for playgrounds in new areas, including in the downtown area of Bowmanville and in
new residential areas. Nearly three-quarters (73%) of survey respondents supported
additional public investment in playgrounds, ranking 7th out of 41 facility types.
Addressing Playground Gaps
Comparative municipalities generally provide playground s based on geographic
distribution to ensure that there is a playground located within 800 metres of residential
areas (five-to-ten-minute walk). This approach is recommended in Clarington to ensure
that they are easily accessible for children and caregivers and supports the
Municipality’s goal of creating complete communities.
Applying an 800-metre service area Clarington’s playgrounds reveals that the
Municipality is providing strong coverage in Courtice, Bowmanville, and Newcastle;
rural hamlets also have good coverage with most served with at least one playground.
Gaps primarily exist in future residential neighbourhoods in Clarington’s Secondary Plan
Areas, which should be addressed through constructing playgrounds at new parks.
Based on a review of park locations identified within Secondary Plan Areas, which are
subject to change as planning approvals are sought, there could be as many as 30 new
playground locations added to the Municipality’s inventory by 2036. Some new projects
are already underway, including a new installation at Northglen East Park.
Natural Playgrounds
Natural playgrounds are becoming more popular to connect users with nature to
improve mental health, social development and physical activity. They encourage play
and interaction with landscapes and materials such as wood, logs, ropes, stones, and
boulders. The use of natural materials is also supportive of corporate initiatives in many
municipalities that aim to be more environmentally friendly. They provide greater
sensory stimulation and imaginative play compared to traditional creative play structures
and they can still be designed to comply with the Canadian Standards Association.
Natural playgrounds are best suited at parks that draw local and regional users such as
at Municipal Wide and Community Parks, as well as at parks serving MTSAs to connect
children with the outdoors, helping to address a nature deficit. Incorporating natural
playgrounds in strategic open greenspaces and natural areas may also be considered
to complement the surrounding area; a natural playground is currently planned to be
incorporated into the design for the Bowmanville Park on the former Zoo Lands.
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High Quality and Inclusive Playground Design
The Municipality has been diligent in maintaining its playground inventory by replacing
aging structures and continuing to do so is encouraged to ensure that the Municipality’s
play features are modern, meet evolving public expectations, and are in good condition
from a safety perspective. As part of playground replacement, as well as for new
playground development, high quality designs should be considered to facilitate strong
user experiences, particularly as there were public suggestions for new and unique
playgrounds. Play features that respond to a range of age groups also need to be
considered, especially for pre-teens who are looking for more advanced and challenging
playgrounds; this Master Plan also speaks to investing in outdoor fitness equipme nt, as
well as other recreation amenities that appeal to youth to encourage physical activity.
From an accessibility perspective, incorporating barrier -free features as part of
playground construction and redevelopment is recommended to align with AODA
requirements. The level of playground accessibility should vary and reflect on the type
of park it is in and expected level of use. For example, rubberized surface could be used
at Municipal Wide and Community Park playgrounds, while engineered wood fibre could
be provided at all other playgrounds. Other accessible components that should be
considered include, but are not limited to, ramps, musical instruments, textured
surfaces, and contrasting colours. An Accessible Playground Distribution Strategy
should be developed to guide the level of accessible features for play structures
across the Municipality. This Strategy should include consideration for surface type and
the provision of ground level and elevated play components.
Recommendations
57. Provide playgrounds within 800-metres of residential areas without crossing
major barriers such as arterial roads, railways, and waterbodies. New and
redeveloped playgrounds should feature high quality design with accessible
features. An emphasis should be placed on locating new playgrounds in future
parks serving Secondary Plan Areas, which could result in approximately 30
new playground sites by 2036.
58. Develop an Accessible Playground Distribution Strategy to identify geographic
locations where enhanced and focused accessibility standards can be
implemented to the highest level of service.
59. Evaluate opportunities to construct natural playgrounds in strategic locations
such as at Municipal Wide and Community Parks, along the waterfront, and
parks serving MTSAs. Incorporating natural playgrounds in strategic open
greenspaces and natural areas may also be considered to complement the
surrounding area.
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Figure 22: Distribution of Playgrounds
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4.22 Outdoor Skating Surfaces
Current Supply
Access to outdoor skating surfaces in Clarington vary
from year to year. Most recently, natural skating
surfaces have been provided at Courtice Community
Complex, Rosswell Park, Pearce Farm Park, and
Guildwood Park. These have been provided through
a partnership with the Municipality and volunteers,
which is a common approach in other communities.
The Municipality is responsible for training volunteers,
providing equipment, regular inspections,
compensating volunteers for water use, and provi ding
other supports as necessary. Volunteers are
responsible for setup and regular ice maintenance.
Market Conditions
Outdoor ice skating has been a Canadian tradition for
generations, and they bring people together outdoors
during the winter season. Key trends in outdoor
skating include the following:
• The ability to maintain natural ice surfaces
has become increasingly difficult, including in Clarington, due to warmer winter
seasons that are not suitable for outdoor skating. Consistently cold temperatures
are required to provide a safe and level skating surface .
• Milder winters have forced municipalities to shorten the skating season, and, in
some cases, outdoor skating venues are closed completely.
• Some municipalities explored strategies to provide more stable outdoor skating
opportunities such as refrigerated ice surfaces or constructing covered shelters,
although these options are more costly to construct compared to providing
naturalized ice surfaces.
• Synthetic ice surfaces are also available that are made from plastic that are
designed to replicate the feel of real ice. While synthetic ice can be used for
warm winter temperatures, they provide a different skating experience due to its
artificial properties as it does not have the same smoothness or glide as real ice.
Courtice Community Complex Outdoor Skating Rink
Rendering
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Three-quarters of respondents to the community survey for the Master Plan supported
additional investment in outdoor skating rinks, ranking 6th out of 41 facility types.
Through the consultation process, public requests were also made for skating trails.
The Municipality is Investing in Outdoor Skating
Council has approved the development of three refrigerated outdoor skating surfaces
over the short-term to serve each of the Municipality’s urban areas at the future South
Bowmanville Recreation Centre, Courtice Community Centre , and Diane Hamre
Recreation Complex. The Courtice location is planned to be completed by 2024, while
the Newcastle location is planned to open in 2025, followed by Bowmanville in 2026.
Some municipalities have adopted a service target of one refrigerated ice pad per
100,000 residents. Once Clarington’s three outdoor skating surfaces are completed, the
Municipality will be providing a service level of one per 41,000 residents. This would
suggest that the outdoor skating rinks approved by Council will be more than adequate
to meet future needs. On this basis, no additional outdoor skating surfaces are
recommended during this planning period.
4.23 Outdoor Lacrosse Boxes
Current Supply
The Municipality offers an outdoor lacrosse box at Clarington Fields, adjacent to the
Bowmanville Indoor Soccer Facility. This location consists of a concrete playing surface
with rink boards, lighting, and multi -lining for lacrosse, ball hockey, and pickleball.
Market Conditions
Lacrosse is one of North America’s oldest sports that was first played by Indigenous
Peoples. Key trends in outdoor lacrosse include the following:
• Between 2004 and 2019, the number of players affiliated with Lacrosse Canada
grew by 10% to 48,000 players, with growth attributed to the increase of field
lacrosse players.10
• The Ontario Lacrosse Association (OLA) reported that there are approximately
33,000 people involved in the organization, which includes players, coaches,
trainers, officials and volunteers.11
10 Filion, P. 2024. Can we really grow this game? Retrieved from https://www.thinklacrosse.ca
11 Ontario Lacrosse Association. OLA’s Heritage. Retrieved from https://ontariolacrosse.com/heritage
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Requests were made for a covered and lit, multi-use lacrosse boxes to accommodate
both junior and senior players. Almost one-third (29%) of respondents supported
additional investment outdoor lacrosse boxes, ranking 39 th out of 41 facility types.
Continuing to Promote the Use of the Existing Lacrosse Box
Box lacrosse is primarily played indoors on dry arena
pads when ice is removed during hockey’s off-
season, although it can also be played outdoors. The
Municipality currently provides outdoor lacrosse
boxes at a rate of one per 108,757 residents, which is
higher compared to the benchmark average of one
per 214,079 residents; Mississauga and Whitby are
the only other municipalities that provide this facility
type.
Clarington’s outdoor lacrosse box was used for a total
of 125 hours in the 2023 season, a few days per
week for only one to two hours at a time. Based on
the number of available prime time hours, this
translates into a usage rate of 7%, suggesting that
there is ample capacity for more use. More recently, the space has also been used for
pickleball. With two new ice pads recommended through this Master Plan, lacrosse
users will have more indoor dry pad capacity, if required, which may further erode the
use of Clarington’s outdoor lacrosse box. On this basis, additional outdoor lacrosse
boxes are not recommended. Continuing to promote the use of the existing outdoor
lacrosse box, which is planned to remain in its current location with the development of
the South Bowmanville Recreation Centre, is encouraged while also utilizing the space
for a variety of activities (pickleball, ball hocket, etc.).
Recommendations
60. Promote the use of the existing outdoor lacrosse box to increase utilization while
maximizing the space for a variety of activities such as pickleball, ball hockey,
etc.
Clarington Fields Outdoor Lacrosse Box
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4.24 Arts and Culture Facilities
Clarington residents have a wide variety of interests, including a heightened need for
meaningful cultural experiences. The Municipality plays a key role in celebrating local
history, culture and traditions, and providing spaces to do so is important to connect with
past, present, and future residents.
Clarington has publicly owned cultural spaces that are operated by the Municipality or
by third-party community organizations, as well as multi-purpose spaces where cultural
activities can take place. Local cultural spaces include art centres and galleries ,
theatres, farmers’ markets, historical landmarks, libraries, private sector artisans and
craftspeople, and more. These are complemented by cultural groups and space
providers across Durham Region, many of which are within driving distance of
Clarington.
The following highlights some of the Municipality’s cultural spaces, or cultural -friendly
spaces, and the activities available at each location. In addition to these spaces, it is
important to note that many of Clarington’s cultural programs and special events take
place within indoor and outdoor community and recreation spaces. These assets
represent only a portion of what is available in the community. It will be important for the
Municipality to maintain an up-to-date inventory of cultural space providers in Clarington
such as the CLMA, community groups, private businesses, etc. to have a full
understanding of local resources to help bring greater awareness to the community as
well as minimize service and facility duplication.
Camp 30 Cafeteria Building
The Municipality owns the cafeteria building – which is one of six built structures – at
Camp 30, which is a site that is designated as a National Historic Site. The Jury Lands
Foundation is an integral partner for the planning, design, funding and potential future
uses of the building. Its historical designation recognizes the aesthetic and design as its
structures are laid out in a campus-like plan with a ring road, grass fields, landscaping,
and mature trees. Camp 30 also boasts important historical sign ificance as a former
boys training school, POW camp during the Second World War, and other uses. Given
the cafeteria building’s condition, it is currently not usable . A significant reinvestment
would be required before this space is programmable for a ny type of use. The first step
is to ensure that the structure is in stable condition to ensure that it can be further
assessed to evaluate long-term opportunities and potentially for the Jury Lands
Foundation to fundraise, which would require a building condition assessment to be
completed.
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Visual Arts Centre and Other Arts Space
The Visual Arts Centre is located in Bowmanville at
Soper Creek Park. The facility is owned by the
Municipality and is operated by the non -profit
organization that was established in 1996. The
organization provides space for art exhibitions and
studio space to display art and hold workshops for
adults and children that are geared to a range of
artistic mediums, including photography, painting,
pottery, drawing, and more. While the Municipality
supports this organization through annual financial
contributions, there are opportunities for physical
enhancements to the Visual Arts Centre building to
improve accessibility; the facility is currently not fully
accessible, which is a limiting factor in the program
opportunities that the organization can provide.
Accessibility enhancements to the outdoor space
around the Visual Arts Centre in Soper Creek Park
could also be undertaken such as repairing or
providing exterior pathways.
In addition to the Visual Arts Centre, the Municipality
directly provides arts and cultural activities within multi -purpose spaces at its facilities,
including the Courtice Community Complex, South Courtice Arena, Diane Hamre
Recreation Complex and Garnet B. Rickard Recreation Complex. These spaces are
suitable for activities such as painting, craft work, and cooking. The use of these spaces
for delivering arts and cultural programs continues to be supported to maximize their
use; this Master Plan found that there is capacity within multi-purpose facilities to
accommodate more use. Programming could potentially be expanded by working
collaboratively with the arts and cultural community such as instructors and experts to
deliver programming within municipal spaces. Ensuring that these spaces are designed
in a manner to accommodate arts and cultural programming will be important, which
includes consideration for amenities, including storage areas, counterspace, sinks,
kitchen or kitchenette, and other features. This will also be an important consideration in
planning and designing space at the future South Bowmanville Recreation Centre.
Visual Arts Centre
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Performing Arts Space
While there are several privately-operated dance
studios in Clarington, there is currently no venues for
community performing arts. This has been a gap for
some time and is something that is desired by the
community. The Master Plan consultation process
received requests for community-driven performing
arts space for theatre productions and performances,
as well as affordable, introductory-level dance
classes. This is important for groups that currently
lack access to appropriate and affordable space to
perform or rehearse; some groups currently rent
school space, although it may not always be
available. It can also be a challenge for the
Municipality to respond to the demand for outdoor
community-driven events, without displacing sport field users.
Municipalities do not provide performing arts spaces to satisfy a service level target.
They are primarily constructed to facilitate economic development and tourism goals,
and to support community building and sense of place. Support for developing
performing arts space can also be rationalized if there are organizations seeking space
for performances and/or to deliver community programming, or if there is a partnership
opportunity with a major entity such as schools, non-profit organizations, and the private
sector. Trends suggests that performing arts space have two types of venues: a
traditional main hall with theatre style seating and stage, and a flexible, smaller hall with
a flat floor that can be used for rehearsals, practices, and programming.12
The Municipality recognizes the need for performing arts space as exploring options for
a performing arts venue was identified as a priority in Clarington’s 2024-27 Strategic
Plan, which is supported by this Master Plan. It is recommended that the Municipality
prepare a feasibility study to confirm the need for an indoor performing arts venue,
including space needs (e.g., traditional main hall, community space, amenities, etc.),
evaluate potential locations, partners, design, financial analysis, and conside r public
and community organization input.
12 AMS Planning & Research, et. al. Feasibility Study for a Cultural Arts Centre in VMC.
Rotary Park
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To complement the indoor performing arts space, the feasibility of hosting productions
and performances outdoors is supported. The Municipality already does this to some
degree as it works with partners to host Concerts in the Park during the summer in
Bowmanville, Courtice, Newcastle, and Newtonville. Exploring opportunities to expand
hosting outdoor performances and productions could also be considered along the
waterfront, which should be considered as part of Clarington’s new Waterfront Strategy,
and the future Bowmanville Park on the former Zoo Lands, or in other locations as
opportunities become available.
Farmers’ Markets
Clarington works with its community groups to promote local agriculture and support
small businesses and healthy eating through farmers’ markets where residents and
regional visitors can purchase fresh fruits and vegetables, meats and cheeses, baked
goods, and handmade products crafted by artisans. In partnership with community
groups, Clarington provides two farmers’ markets on municipal property in Bowmanville
(at the Garnet B. Rickard Recreation Complex) and in Newcastle (Diane Hamre
Recreation Complex). These are complemented by numerous farms throughout the
Municipality that provide a range of fresh fruits and vegetables, as well as other
products. While there is currently no farmers’ market in Courtice, the Municipality should
be ready to respond if they are approached by a willing community organization open to
taking on this initiative with the support of staff.
Clarington Library, Museum & Archives
CLMA is one of the primary cultural providers of space s, programs, and services in the
Municipality. Section 0 and Error! Reference source not found..0 contains details of
what the CLMA provides and recommendations going forward.
Clarington Cenotaphs and Memorials
Clarington’s cenotaphs were erected to memorialize local residents who bravely fought
in historical battles. For example, the Bowmanville Memorial Monument is located at the
Municipal Town Hall. The monument was constructed in 1922 in memory of those who
lost their lives in the First and Second World Wars, the Korean War, Gaza Strip , and
Afghanistan. Adjacent to the Bowmanville Memorial Monument is a mural depicting local
military history. Other historical monuments are located at Clarington Fields
(Bowmanville), the corner of Main Street and Station Street in Orono, adjacent to the
Newcastle Community Hall, and on the corner of Newtonville Road and Hill Street in
Newtonville. These cenotaphs are often used as the location for the Municipality’s
annual Remembrance Day services.
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The Municipality is also in the process of renovating Ve terans’ Square in Bowmanville to
create a welcoming gathering space for resid ents. Located adjacent to the Municipality’s
Administrative Centre, this space is used for hosting civic events such as Clarington’s
Remembrance Service. Planned to be completed before November 2024, the
renovations include new flag poles, raised gardens, accessible seating, paved
pathways, service animal relief area, and mobility device charging stations.
Other Non-Municipal Cultural Facility Providers
Clarington’s cultural spaces are complemented by non-municipal community service
providers. There are a number of artisans and craftspeople located throughout the
Municipality, as well as music instructors and dance studios. As the Municipality
continues to build an inventory of non-municipal cultural facility (as well as program and
service) providers, as recommended by this Master Plan, greater promotion and
awareness of these organizations is encouraged.
Heritage Properties
Protecting and preserving Clarington’s heritage properties are important to celebrate the
past and the Municipality’s unique identity, as well as to showcase the evolution of
architecture dating back to the early 19 th century. There are nearly 100 properties that
are designated as a heritage property under the Ontario Heritage Act, some of which
are owned by the Municipality, including Waverley Place, Haydon Community Hall,
Newcastle Village Community Hall, Kirby Schoolhouse, and Town Hall in Bowmanville.
The Clarington Heritage Committee provides support for the Municipality to identify,
review, discuss, and make recommendations to Council on properties and issues of
cultural heritage, value, and interest.
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Recommendations
61. Undertake a cultural mapping exercise to establish a full understanding of
cultural resources that are available from the Municipality, CLMA, community
providers, private businesses, etc. as a tool for bringing awareness and
promoting what’s available in Clarington.
62. Undertake a building condition assessment of the Camp 30 Cafeteria Building to
understand the requirements to ensure that the structure is stable to allow for an
evaluation of long-term opportunities and potentially for the Jury Lands
Foundation to fundraise.
63. Undertake a feasibility study to update the Visual Arts Centre, including
enhancing accessibility and modernizing the building to bolster programming
opportunities and achieve long-term success.
64. Continue to deliver and expand general arts and cultural programs within
existing and future indoor and outdoor spaces and ensure that they are
designed to accommodate such uses with consideration given to supporting
amenities and features. Engaging the arts and cultural community to provide
programming within municipal spaces is encouraged.
65. Undertake a feasibility study to confirm the need for an indoor performing arts
venue to consider space considerations (e.g., traditional main hall, community
space, amenities, etc.), evaluate potential locations, partners, design, financial
analysis, and consider public and community organization input.
66. Enhance opportunities to provide outdoor productions and performances such
as along the waterfront, Bowmanville Park on the former Zoo Lands, or other
locations as they become available.
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4.25 Library Space
Current Supply
Four library branches are located in Courtice, Bowmanville, Newcastle, and Orono
(Figure 23). The library branches in Courtice and Bowmanville are co -located with other
municipal facilities (e.g., Courtice Community Complex and Municipal Town Hall), while
the Newcastle and Orono branches are standalone facilities. CLMA offers a total of
48,700 square feet of library space, which translates into a service level of 0.45 square
feet per person, which is less than the benchmark average (0.50 square feet) and lower
than the industry target of 0.60 square feet per person (Table 20).
Table 20: Service Level Comparison, Library Square Feet Per Person
Municipality 2021
Population
Library
Branches
Total Area
(Sq. Ft.)
Service Level
(Sq. Ft. per
Person)
Ajax 126,666 3 56,100 0.44
Kitchener 256,885 5 155,214 0.60
Markham 338,500 4 151,401 0.45
Milton 132,979 3 53,337 0.40
Oakville 213,759 7 108,301 0.51
Oshawa 175,400 4 95,085 0.54
Pickering 100,000 3 51,000 0.51
Richmond Hill 202,000 4 102,000 0.50
Whitby 138,501 3 76,800 0.55
Average 187,188 4 94,360 0.50
Clarington (2024) 108,757 4 48,704 0.45
Each branch features print material and a multi -media collection, dedicated age spaces,
computers and internet, designated age spaces, and meeting/study rooms (except for
the Orono Library Branch). Unique to the Courtice Library Branch is the Municipality’s
first makerspace that provides a space for collaboration, learning technology and more.
Equipment available at the makerspace includes button makers, 3D printer, vinyl cutter,
and sewing machine. In recent years, CLMA has reinvested in the Courtice,
Bowmanville, and Orono Library Branches to enhance and expand physical spaces.
At the time of preparing this Master Plan, the CLMA was moving forward with
renovations to the Bowmanville Library Branch to reconfigure and refresh the space,
which will include absorbing the museum exhibits and services that are currently
provided at the Sarah Jane Williams Heritage Centre.
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Figure 23: Distribution of Clarington Library, Museum & Archives Facilities
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Library Facility Strategy
Library facility needs are assessed through a combination of space requirements and
geographic distribution, with consideration being given to potential joint use locations
with other civic facilities. The consultation process for this Master Plan found th at there
is interest in expanding library opportunities with 57% of residents supporting additional
investment in public libraries.
The provision of library space in Clarington has not kept pace with historical levels. A
library study conducted in 2013 for the Courtice community reported that library space
was being provided at a rate of 0.50 square feet per resident and while the Courtice
library branch was expanded, the library space service level has declined to 0.4 5
square feet per resident, demonstrating that the rate of population growth has exceeded
expanded library space.
The 2013 library study recommended a per capita target of 0.6 square feet of library
space per person, which was reinforced through CLMA’s 2016 Library Service Review.
A revised target of 0.55 square feet per person is recommended in Clarington, which is
an increase from the current service level and in the middle of the range between the
benchmark average and industry target. The rationale behind revising this target is that
it continues to support CLMA’s role in providing community gathering space, as well as
programs and services that extend beyond traditional books and resources , but it also
recognizes the shift towards co-locating with community centres to create activity hubs,
which is a common best practice, and the potential for shared spaces such as lobbies,
washrooms, program rooms, etc., resulting in reduced square footage requirements. It
also recognizes a common practice in other library systems to invest in outreach
services to reach residents such as bookmobiles, and book lockers or vending
machines.
Based on a current population of 108,757 residents and the revised target, the
Municipality will require a total of 89,452 square feet of library space by 2036, which is
40,748 square feet more than what is currently provided (Table 21). In other words, the
Municipality would effectively need to provide the equivalent of nearly two Bowmanville
library branches by 2036.
Table 21: Projected Library Space Needs
Year 2026 2031 2036
Projected Population 123,730 143,970 162,640
Library Space Needs (sq. ft.)
Based on a target of 0.55 sq. ft. per resident 68,052 79,184 89,452
Additional Library Space Needs (sq. ft.)
Based on 48,704 sq. ft. of existing library space +19,348 +30,480 +40,748
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An analysis of library space needs based on geography was also conducted to ensure
that residents have adequate access to library spaces and service across Clarington
(Table 22). The greatest need for library space is in Bowmanville where the majority of
new residents are expected to reside during the planning period. Additional library
space is also required in Courtice, as well as in Orono and the rural area. Newcastle is
currently providing a sufficient library space, although it is anticipated that there will be a
gradual need for new library space by 2036.
Table 22: Projected Library Space Needs by Community
Community Library Space Needs 2026 2031 2036
Projected Population 58,327 69,456 79,972
Bowmanville
Library Space Needs (sq. ft.)
Based on a target of 0.55 sq. ft. per resident 32,080 38,201 43,985
Additional Library Space Needs (sq. ft.)
Based on 24,000 sq. ft. of existing library space
at the Bowmanville Library Branch
+8,080 +14,201 +19,985
Projected Population 31,984 36,421 40,286
Courtice
Library Space Needs (sq. ft.)
Based on a target of 0.55 sq. ft. per resident 17,591 20,032 22,157
Additional Library Space Needs (sq. ft.)
Based on 12,000 sq. ft. of existing library space
at the Courtice Library Branch
+5,591 +8,032 +10,157
Projected Population 13,074 16,813 20,417
Newcastle
Library Space Needs (sq. ft.)
Based on a target of 0.55 sq. ft. per resident 7,191 9,247 11,229
Additional Library Space Needs (sq. ft.)
Based on 9,100 sq. ft. of existing library space
at the Newcastle Library Branch
-1,909 +147 +2,129
Projected Population 20,345 21,290 21,955
Rural/Orono
Library Space Needs (sq. ft.)
Based on a target of 0.55 sq. ft. per resident 11,190 11,710 12,075
Additional Library Space Needs (sq. ft.)
Based on 3,604 sq. ft. of existing library space
at the Bowmanville Library Branch
+7,586 +8,106 +8,471
A series of capital projects are recommended to address Clarington’s library space
needs, with consideration being given to the location and timing of population growth,
existing library locations, and geographic equity. The current distribution of librari es is
very good, but new and expanded facilities will be required to serve growth areas, as
well as alternative delivery models; appropriate resource requirements would need to be
considered to support additional library space, such as staffing. Prior to l ibrary
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expansion or development, supporting feasibility studies will need to be prepared to
confirm needs and locations, design, sizing, and financial and resource implications.
• Approximately 20,000 square feet of additional library space is required in
Bowmanville to meet growth-related needs by 2036. CLMA is currently
undergoing renovations at the Bowmanville Branch Library, although this will not
result in any additional space and given that there is no opportunity for
expansion, other locations should be considered. The most logical option is to
construct library space at the South Bowmanville Recreation Centre as part of a
future addition to the facility given that there is space available, which would
create a community hub for Bowmanville as well as cross programming
opportunities and other efficiencies.
Given the planned facility components that will be constructed as part of the first
phase of the facility, as well as other facilities recommended to be included as
part of a future expansion (e.g., indoor aquatic centre), it is not likely that this site
would be capable of accommodating all of Bowmanville’s future library space
requirements. A facility fit exercise should be undertaken to confirm how much
square footage of library space can fit on site (preferably in the 12,000 square
foot range). The remaining balance of library space needs should be
accommodated at another location, preferably in the north end of Bowmanville
and co-located with other community facilities.
• Up to 10,200 square feet of library space is required in Courtice. The 2013
Study for the Expansion of Library Services for the Courtice Community
recommended that library services be expanded at the existing Courtice
Community Complex or a new site be acquired in the Courtice Urban Centre to
establish a new District Library Branch. Internally expanding the existing space
into vacated space was ultimately supported and in 2015, the Courtice Library
Branch was expanded that doubled its size to include a make rspace, media
room, age spaces, multi-purpose room, and reading areas. The expansion took
over space that was previously used by a daycare operator and thus, it did not
require expanding the building footprint of the Courtice Community Complex.
Given that the Municipality has invested in this library space, exploring future
opportunities to accommodate a further expansion of library space at this site is
recommended, preferably by extending the building footprint to the west in
conjunction with expanding the aquatic facility, as recommended in this Master
Plan. Should it be determined that this location cannot be expanded, undertake
a feasibility study to determine alternatives to providing library branch space in
Courtice.
• Newcastle is currently providing sufficient library space to meet current needs,
although it is anticipated that approximately 2,100 square feet of additional
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library space will be required by 2036. Recognizing the overall size of the
community, the optimum solution is to investigate the feasibility of expanding the
existing branch as it is currently well positioned within the Newcastle Village
Centre and in proximity to destinations such as the Newcastle Community Hall; it
is also located adjacent to a seniors’ residence. A cursory review of the site
revealed that the north side of the building is a soccer field, although there may
be opportunities to expand the building footprint to the west, south and east.
• The recommended target suggests that there is a need for nearly 8,500 square
feet of new library space to serve Orono/rural area, which is generally
equivalent to the existing Newcastle Library Branch. Modest enhancements
were recently made to the Orono Library Branch for accessibility and to enhance
the user experience. Given the large geographic of Clarington’s rural area and
dispersed population, expanding the Orono Branch Library or constructing new
library space would not be adequate to meet the needs of rural residents and
thus is not recommended.
Instead, it is recommended that an emphasis be placed on expanding CLMA’s
reach to the people through strategies by establishing a bookmobile program to
travel to hamlets across the Municipality, which is supported by CLMA’s 2023 -
2027 Strategic Plan. Consideration should also be given to creating express
locations throughout the rural area to provide places for rural residents to pick up
library holds and drop-off items. Library vending machines could also be
installed in strategic locations to provide resi dents with a variety of choices and
augment library access for borrowing books and other materials.
Library Space and Design Considerations
People expect libraries to be well-designed with inspiring spaces in which they want to
spend time. Spaces must be accessible to everyone with convenient and appealing
amenities such as washrooms, comfortable seating, power outlets, Wi -Fi and more.
Modern libraries are being designed as flexible spaces that can be reconfigured
according to changing needs.
Library spaces must also be affordable for the community to use. CLMA recently
implemented rental rates for the use of its multi -purpose spaces, which is consistent
with other library systems to offset costs, which is guided by its Use of Space policy. A
high-level comparison revealed that CLMA facility rental costs are generally in line with
other library systems, but public concerns were raised during the Master Plan’s
consultation about the requirement for the facility renter to have insurance; it can be a
barrier to residents and community groups, although this is a best practice in other
communities to minimize risk.
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Some libraries have an increased focus on people and less on collections space and
may include modular fixtures and ergonomic furniture, wide and uncluttered aisles with
lower shelving to accommodate persons with physical disabilities, and a more “open”
interior to accommodate study and workspace with good sightlines. Some libraries are
also extending outside the facility (e.g., reading gardens or patio spaces), increasing
usable library space on a seasonal basis. As a result, the demand for library space i s on
the rise. An emphasis on good building design is critical. Flexible, accessible, and
resilient spaces are required. In planning, designing, and developing new and expanded
library spaces, the following should be considered (this is not intended to be a
comprehensive list):
• Fewer desktops and more mobile devices;
• Movable, cleanable and durable furniture;
• Enhanced air exchange and connections to outdoors;
• Less congested and more open public areas where people can gather and play
together;
• Reconfigured administration workspaces;
• Larger, accessible washrooms with more touchless features;
• More expandable network infrastructure;
• Large, multi-purpose rooms to accommodate study, meetings, learning, programs
and exhibits;
• Aesthetically-pleasing environments;
• Space for displaying public art and artifacts, as well as associated storage;
• Space-making with furniture choices and configurations;
• Food services and places where food can be consumed;
• The use of sustainable materials and energy efficient equipment; and
• More outdoor reading areas, pop-ups in parks and public spaces, and other
outreach or program opportunities.
Looking ahead, complete communities that provide easy access to schools, jobs and
the services that are needed the most have excelled during the pandemic, emphasising
the need to continue to provide library services that are accessible to all residents and
where possible, co-located with other civic facilities to create strong community hubs
where residents can access a range of resources, programs, and services.
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Recommendations
67. Undertake feasibility studies to implement the recommended library facility
strategy outlined in this Master Plan.
a. Add approximately 20,000 square feet of library space in Bowmanville. A
portion of library space needs should be met through a future expansion of the
South Bowmanville Recreation Centre. A facility fit exercise should be
undertaken to confirm the square footage of library space that can be
accommodated (preferably in the 12,000 square foot range). The remaining
balance should be provided at another location, preferably in the north end of
Bowmanville and co-located with a community facility.
b. Expand the Courtice Library Branch to add approximately 10,200 square feet
of space, potentially by extending the existing building footprint to the west,
which could be undertaken in conjunction with expanding the aquatic facility,
as recommended in this Master Plan. Should it be determined that this location
cannot be expanded, undertake a feasibility study to determine alternative s to
providing library branch space in Courtice.
c. Add approximately 2,100 square feet to the west, south or east side of the
Newcastle Library Branch.
68. As part of library space development and redevelopment, consider leading
space and design considerations to provide accessible, fresh, and modern
spaces that are relevant and responsive to all users, and are inclusive and
flexible to support evolving needs, services, and programming.
69. Increase access to library resources in smaller hamlets and the rural areas of
Clarington through alternative service delivery models by providing a
bookmobile service for rural residents and installing two library lockers for pick-
up and drop-offs. Library book vending machines should also be considered.
70. Monitor the effect on space utilization resulting from the implementation of the
Use of Space Policy and, if necessary, undertake policy revisions.
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4.26 Museum and Archives Space
CLMA is responsible for operating three properties that house museum exhibits and
artifacts, and archives. The Sarah Jane Williams Heritage Centre is located a short
distance from the Municipal Town Hall in Bowmanville. It contains exhibitions and
collections that showcase the Municipality’s history and is home to ClaringTown, which
is an interactive exhibit for children, as well as an archival colle ction to assist those
looking to conduct research on local events, families, and more.
As previously mentioned, the Municipality is currently planning for the renovation of the
Bowmanville Branch Library to reconfigure space and to accommodate the collections,
exhibits and archives that are currently located at this Centre. This initiative i s supported
by this Master Plan as it endeavours to make efficient use of existing space and by co -
locating library services with museums and archives, CLMA will be well positioned to
deliver enhanced museum-related programming to residents and visitors, a s well as
better connect people with Clarington’s past through its archival resources, which are
also in the process of being digitized.
When the Bowmanville Branch Library renovation is completed, CLMA and the
Municipality should explore alternative historical and/or cultural uses for the existing
Sarah Jane Williams Heritage Centre in a manner that aligns with agreement made
between the original property donor and the Municipality.
Clarington also has two heritage properties that are
designated under the Ontario Heritage Act, including
Waverley Place. Originally constructed in 1847 as a
one storey cottage, it is recognized as one of the
earliest brick built homes in Bowmanville. It was later
renovated and expanded in the 1860s and 1880s to a
two storey Italianate style building that exists today.
The home features nine rooms and showcases the
lifestyle of an upper-class family from the early 1900s.
Waverley Place was home to a wealthy merchant
named David Fisher, who also served on
Bowmanville’s first municipal council. Waverley Place
was also home to J.H.H. Jury, who was a prominent
local citizen and one of the founders of a chain of
drugstores.13
13 Ontario Heritage Trust. Retrieve from https://www.heritagetrust.on.ca
Waverley Place
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The Kirby Schoolhouse/Clarke Museum was
constructed in 1863 and was originally a small log
building, which was replaced in 1857 and 1878 with a
larger structure. The building was used as a school
until 1976 and the Clarke Museum and Archives
assumed ownership in 1980.
Both facilities are closed to the public, although tours
of the facilities can be arranged for educational
programs; they are also opened during annual Doors
Open events and Waverley Place can be booked for
events such as weddings. There may be
opportunities to increase programming opportunities
as well as staff efficiency for CLMA and the
Municipality.
CLMA’s Strategic Plan speaks to centralizing its heritage buildings in Bowmanville, such
as relocating Kirby Schoolhouse Museum to Waverley Place, to “fully program and
promote our local history”. This initiative aligns with best practices in other municipalities
such as Pickering, Uxbridge, Scugog, London, and other communities that have
centralized its heritage buildings at a single location to create “museum villages” or
“community museums” that allow operators to offer stronger community programming
and educational experiences, as well as tourism and rental opportunities. Together with
the renovated Bowmanville Branch Library, these initiatives are logical steps forward to
raising the profile of CLMA in the community and is one that is supported by this Master
Plan to position downtown Bowmanville as a destination for learning, technology, and
connecting with Clarington’s past, and better align with the Galleries, Libraries,
Archives, and Museums (GLAM) trend.
Recommendations
71. Explore alternative historical and/or cultural uses for the Sarah Jane Williams
Heritage Centre following completion of renovations to the Bowmanville Branch
Library, which will absorb museum artifacts and exhibits, and archives .
72. Proceed with co-locating Clarington’s heritage buildings in Bowmanville to
create a centralized hub, in alignment with CLMA’s Strategic Plan.
73. Create a plan to bolster museum programming and use of archives with a focus
on maximize the use of enhancing CLMA spaces to celebrate and better
connect residents to Clarington’s past.
Kirby Schoolhouse/Clarke Museum
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5. Culture Plan
While culture can mean different things to different
people, it is generally considered to be the expression and
celebration of beliefs, values, attitudes, behaviours, and
perspectives that are shared between individual and
community interactions that creates a sense of place and
makes places unique. Culture can also refer to the
customary beliefs, social forms, and material traits of
racial, religious, or social group.14
Culture can be shared through many forms of mediums
and media including, but not limited to, gatherings, special
events and festivals, storytelling, preservation of archives
and artifacts, the arts (e.g., performing, fine, visual, literary,
etc.), and more. Culture contributes to communities in
many ways, including:
• Creating a sense of local pride through
community building, place-making, and providing
quality experiences.
• Offering a greater variety of pastime activities for residents to pursue, beyond
traditional recreation.
• Generating economic multipliers, particularly with events increasingly being
marketed outside of communities to draw tourists, thus forming an important
element of broader tourism strategies.
• Encouraging social interaction by encouraging residents to get involved in the
community, and providing venues where new residents can understand what
makes the municipality unique (and interact with established residents).
This section provides the Municipality with guidance on elevating culture in Clarington
and celebrating local arts, diversity, events, and people.
14 https://www.merriam-webster.com/dictionary/culture
Newcastle Cenotaph
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5.1 Providing a Foundation for Culture
In 2006, a landmark document for culture was prepared for
the Government of Canada that identified culture as being one
of four pillars of community sustainability.15 Across Canada
and around the world, a thriving arts, culture, and heritage
system brings multi-faceted benefits to a community. Ontario’s
cultural (and informational) industry generated $34.4 billion in
GDP in 2022, as well as employing nearly 160,000 people or
2% of the Provincial workforce.16
Clarington and the local cultural community are keen to
leverage the contributions and talents of the creative
collective. The Municipality has historically been the provider
of space where cultural opportunities can take place, grow,
and thrive. Over the years, the Municipality has invested in
these spaces in various ways, such as delivering and/or
supporting special events and festivals, acquiring the cafeteria
building at Camp 30 (conveyed to the Municipality in
2022), and funding partners and facility operators such
as Visual Arts Centre as well as CLMA.
Clarington’s cultural opportunities are primarily delivered by local creative individuals
and collectives. The Municipality supports these individuals and organizations through a
community development model by providing as needed supports such as funding,
promotion and awareness, and other means to ensure their long-term success and the
successful delivery of services and programs.
Cultural opportunities are important for all ages, particularly for younger children and
older adults. Involvement in the cultural sector encourages self-expression and can
develop feelings of confidence and self-worth, and empowerment. Participation in arts
and culture at an early age can lead to life-long involvement, something that is also
important during older adulthood as there is ample research linking participati on to the
prevention of cognitive deterioration and dementia and minimizing social isola tion. In the
current day and age, more people are tapping into their creative sides using technology
15 Government of Canada. From Restless Communities to Resilient Places: Building a Stronger Future for
All Canadians. (2006). Final Report of the External Advisory Committee on Cities and Communities.
16 Statistics Canada. February 2024. Information and Cultural Industries (NAICS 51): Ontario, 2023–2025.
Retrieved from https://www.jobbank.gc.ca/trend-analysis/job-market-reports/ontario/sectoral-profile-
information-and-culture
Public art in Bowmanville
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available through their smartphones and tablets, meaning that there is upside for
participation in arts and culture activities.
5.2 Cultural Diversity in Clarington
Clarington’s ethno-cultural diversity can play a prominent role in shaping the cultural
system, often contributing to the community’s identity and traditions that have carried
over time. Ethno-cultural background is also part of establishing new traditions and
offerings, which is part of the reason that a community’s cultural identity is dynamic and
constantly evolving.
Municipalities across the GTHA are experiencing cultural diversification and Clarington
is no exception. The 2021 Census reported that 15% of residents are immigrants, which
is an increase from 12% reported in the 2016 Census. Major countries of origin include
the United Kingdom, India, Jamaica, and the Philippines. While Clarington’s population
is not as diverse as Durham Region and Ontario as a whole, where 27% and 30% of
residents are immigrants, respectively, continued cultural diversification is expected in
the future that will drive interests in cultural activities; Clarington is already experiencing
a shift in demand for more recreation opportunities such as cricket driven by increasing
diversity of the population, as well as a growing demand for meaningful cultural
opportunities. Recognizing that 85% of Clarington’s residents are non -immigrants, the
Municipality is not likely to face significant culturally-related participation barriers (e.g.,
language), although Clarington is anticipated to continue to diversify as its population
grows. The Municipality and CLMA are proud to offer a range of cultural-related
programming as well as respond to interests that are gaining in popularity such as the
new cricket field at Courtice Memorial Park.
5.3 Public Art
Incorporating public art in parks and facilities is a growing trend to recognize artists and
crafts peoples, Indigenous Peoples, and organizations that are dedicated to promoting
and preserving local history. Public art also significantly contributes to public spaces by
creating welcoming and imaginative places that incorporate values or pieces of history.
Clarington understands this significance and has undertaken various initiatives to
continue to grow the collection of public art and heritage features se en throughout the
Municipality.
Examples of public art features are found throughout Clarington, including murals along
main streets depicting important historical locations and imagery. Most recently in 2022,
Clarington revealed a mosaic mural located at Town Hall that was created by the
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community through 700 individual hand painted
tiles.17 This art piece was developed through the
collective efforts of various residents and community
groups, representing history and special pieces of
Clarington’s story. Ontario Power Generation
sponsored this community initiative alongside the
knowledge provided by Mural Mosaic.
In 2020, Clarington received a $110,000 grant from
the Ontario Ministry of Agriculture, Food and Rural
Affairs (OMAFRA) to install public art pieces
throughout the Municipality. A local art company and
three local artists undertook the task of creating
artwork for the downtown areas. Art installations
included a mural of influential women in Bowmanville,
coloured polycarbonate silhouettes of youth, garden
sculptures, and artistic bike racks.18
Continued investment and provision in public art is
encouraged to animate spaces, spark creativity and
imagination, showcase historical and cultural values,
and recognizing Indigenous Peoples. To guide this
process, the creation of a Public Art Policy is
recommended to provide guidance on evaluating and
approving public art installations across Clarington. To
support this, establishing a Public Art Reserve fund would assist with acquiring,
developing, installing, and maintaining public art, which could be funded through gifts,
bequests, fundraising, levy, or other funding source.
Recommendations
74. Create a Public Art Policy to provide guidance on evaluating and approving
public art installations and create a Public Art Reserve Fund to assist with
acquisition, development, installation, and maintenance; funding which could be
made through gifts, bequests, fundraising, levy, or other funding source.
17 https://www.clarington.net/en/recreation-and-tourism/community-art-mosaic-project.aspx
18 https://www.clarington.net/en/your-community/public-art-project.aspx
Public art in Orono
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5.4 Special Events and Festivals
The Municipality of Clarington hosts and enables a wide variety of special events for
residents on an annual basis. The Municipality recognises that special events bring
residents and visitors together resulting in strengthened community pride and cohesion
and in 2019, Clarington was recognized as Municipality of the Year by Festivals and
Events Ontario. Clarington’s events are held throughout the year to celebrate seasons,
holidays, and significant historical moments and more. They promote the attributes a nd
uniqueness of the Clarington and often bring an economic impact to local businesses.
The Municipality, primarily through the Public Services Department, is involved with 42
special events to varying degrees annually, with many held in local Business
Improvement Areas (BIAs) in Bowmanville, Newcastle, and Orono, as well as on public
property at the Municipality’s community centres. The Municipality provides two different
types of events that require different resources and supports – Corporate/Departmental
and Community Driven events (Table 23).
Table 23: Municipality's Role in Special Events and Festivals
Municipality’s Role in Special Events and Festivals
Involvement Corporate/Department
Led Events
Community Driven / Other
Events
Organizational
components
Set-up and take down of
equipment
Maintenance and waste
management
Legislative compliance
Coordination with agencies
and organizations
Lease/rental agreements
In addition, CLMA also provides events at their library branches, Sarah Jane Williams
Heritage Centre, and Waverley Place. CLMA is responsible for all aspects of their in-
house events, although other community organizations and levels of government may
also play a supporting role (including the Municipality). CLMA also assists organizations
and the Municipality in planning other community-led events. Special events and
festivals have several positive impacts on life in Clarington as they provide an
opportunity for residents to gather, while serving as important platforms to celebrate
local culture, heritage, talent, and achievements. The Municipality has demonstrate d its
commitment to supporting local festivals and special events by providing indoor and
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outdoor venues, offering support through funding and logistical resources, and
facilitating the planning and delivery of events themselves.
Special events and festivals are unique in terms of their target audience, type s of
activities taking place, their complexities to plan and execute, and ultimately their size.
Municipal support for special events and festivals also span s across different
departments depending on the type of event, whether it uses a facility or outdoor space
(or both), whether road closures are needed, if the event is licensed for alcohol
consumption, and any other approvals from municipal or other governm ent agencies.
Consultations held for the Master Plan demonstrated that residents want to see more
special events and festivals with suggestions made for events centered around music,
food, and celebration of different cultures. Support for investing in special event spaces
was identified through the community survey with 71% of respondents supporting
greater investment in special event spaces, which ranked 10th out of 41 facility types. In
particular, there is a desire for more large-scale community events.
To effectively deliver Municipally led special events and festivals, and to support
organizations in delivering community-driven ones, a Special Events and Festivals
Strategy should be prepared to provide the Municipality with a robust understanding
of the resources required in this regard. This Strategy would provide guidance to the
Municipality and organizations by developing:
• A long-term vision for special events and festivals in Clarington;
• Strategic directions, initiatives, and recommendations alongside a timeline for
implementation;
• An understanding of gaps in service along with how existing infrastructure (e.g.,
streets, community centres, parks, etc.) can be leveraged as well as any new
infrastructure that may be required;
• Strategies for marketing, promoting, and funding special events and festivals , as
well as to execute actions articulated through the Municipality’s Inclusion,
Diversity, Equity and Anti-Racism (IDEA) Strategy to ensure that special events
and festivals are inclusive of all attendees;
• Opportunities for collaboration between community stakeholders, departments,
adjacent municipalities, and Durham Region; and
• Funding and staffing requirements associated with implementing the vision and
recommended actions to strengthen special events and festivals.
Measuring the return on the investment can be done from a financial perspective, such
as taking the total municipal costs for the event and dividing it by the number of
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attendees to arrive at a cost per participant. The impact on local businesses can also be
achieved by identifying spending patterns per attendee. An event's success would be
measured by quantifying annual participation, asking participants their satisfaction
levels, monitoring social media activity, and sponsorship recognition. Both qualitative
and quantitative measures should be undertaken to ensure the best use of public
funding.
Recommendations
75. Prepare a Special Events and Festivals Strategy that defines the roles and
responsibilities of the Municipality, community organizers, and the CLMA in
delivering and facilitating special events. The Strategy should articulate funding
and staffing requirements, promotional and awareness strategies targeted to
residents and tourists, strategies to address relevant actions of the Municipality’s
Inclusion, Diversity, Equity and Anti-Racism (IDEA) Strategy, and identify how
existing and future physical infrastructure can be incorporated as part of parks
and facility designs to deliver quality experiences.
5.5 Supporting and Engaging Indigenous Peoples
Clarington is situated within the traditional and treaty territory of the Mississaugas and
Chippewas of the Anishinabeg, known today as the Williams Treaties First Nations.
According to the 2021 Census, approximately 3% of Clarington’s population identify as
Indigenous. The Municipality’s work on these lands acknowledges the resiliency of
Indigenous Peoples and their longstanding contributions, now known as the Municipality
of Clarington.19 Supports related to working collectively with Indigenous Peoples to
provide well rounded parks, recreation, and cultural opportunities include :
a) The Aboriginal Sport Circle is a not-for-profit organization that was founded in
1995. It is designated as Canada's governing body and voice for Aboriginal sport
throughout the country. Each Province and Territory is represented and is an
excellent resource for recreation providers. It advocates for the Aboriginal
community to engage in healthy and active lifestyles. The Regional Coordinators
in Ontario work to better engage the community and offer grants to fund
programs and activities through the Power to Play Program.
b) The IndigenACTION Strategy was developed by the Assembly of First Nations
(AFN), which is a national organization representing First Nations peoples in
Canada. The Strategy serves to develop partnerships with community-level sport
19 https://www.clarington.net/en/your-community/indigenous-support-and-resources.aspx
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and recreation leaders to ensure that First Nations youth can live healthier
lifestyles and overall well-being through recreation and sport.
c) Indigenous Cultural Competency Training is provided by Indigenous
organizations and businesses. The program provides organizations that work
with Indigenous Peoples and groups to obtain the skills, knowledge, and respect
for the history, terminology, values, and behaviours of Indigenous peoples. It is
invaluable as communities begin to develop strong relationships built on respect.
d) The Truth and Reconciliation (2015) and the Parks for All (2017) reports
speak to the role that Canadians have in reconciling with Indigenous Peoples
over past history. The following excerpt from the Truth and Reconciliation report
articulates the call to action through sport.20
87. We call upon all levels of government, in collaboration with Aboriginal
peoples, sports halls of fame, and other relevant organizations, to provide
public education that tells the national story of Aboriginal athletes in history.
88. We call upon all levels of government to take action to ensure long -term
Aboriginal athlete development and growth, and continued support for the
North American Indigenous Games, including funding to host the games
and for provincial and territorial team preparation and travel.
Clarington and CLMA are committed to the Calls to Action identified in the 2015 Truth
and Reconciliation Commission Report, which are reinforced through their Strategic
Plans. The Municipality and CLMA consistently employ land acknowledgements,
provides local Indigenous resources, hosts programs and events about Indigenous
culture and heritage, and more. Indigenous Peoples are recognized through educational
arts and cultural programming, sports, parks amenities, and interpretive displays.
The Municipality and CLMA play a role in recognizing and supporting Indigenous
Peoples by providing resources and support to better understand the history and
contributions of Indigenous Peoples, as well as celebrating National Indigenous Peoples
Day to work towards reconciliation. Regularly engaging the Indigenous community to
advance reconciliation through parks, recreation, and culture services is recommended.
This is consistent with Clarington’s 2024 -27 Strategic Plan that directs the Municipality
to develop an Indigenous Engagement and Relationship Building Strategy and the
CLMA Strategic Plan, which speaks to developing a Repatriation and Decolonization
Strategy. There may be synergies in developing these documents together.
20 Truth and Reconciliation Commission of Canada. 2015. Truth and Reconciliation Commission of
Canada: Calls to Action.
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The Municipality also has a 2024-27 Inclusion, Diversity, Equity and Anti-Racism (IDEA)
Strategy that reflects Clarington’s vision for creating a welcoming community for all
residents. The IDEA Strategy identifies actions to achieve this vision and includes steps
to recognize, support, and engage Indigenous Peoples, including creating a plan to
address applicable Calls to Action, identifying appropriate organizations to engage in
developing the Indigenous Engagement and Relationship Building Strategy,
collaborating with the Indigenous community on the Moccasin Identifier Project, and
identify applicable Calls for Justice in relation to the Missing and Murdered Indigenous
Women and Girls Project.
Recommendations
76. Regularly engage key groups such as the Indigenous community and Aboriginal
Sports Council to identify ways to advance reconciliation through parks,
recreation, culture, and library services, as well as to inform the Municipality’s
Engagement and Relationship Building Strategy, actions articulated in
Clarington’s IDEA Strategy, and CLMA’s Repatriation and Decolonization
Strategy; there may be synergies in working collaboratively to develop strategies
and programs aimed at engaging Indigenous Peoples.
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6. Delivering Services
This section provides the Municipality and CLMA with guidance on delivering services to
meet the needs of current and future residents. Recommendations are based on
community input, as well as research and best practices in other municipalities to
provide the Municipality and CLMA with key directions to strengthen internal capacity,
improve service delivery, engage underrepresented populations, and make evidence -
based decisions. This section will continue to be augmented by the on-going
organization and staffing review component of the Master Plan’s work.
6.1 Service Delivery Model
The Municipality of Clarington
Clarington provides recreation services through the
Community Services Division, which is overseen by the
Public Services Department and is supported by other
corporate departments, divisions, and community
partners. This service delivery approach aligns with best
practices by embracing a Community Development
Model. Clarington provides aquatics, camps, skating,
and active programs, where staff are most qualified to
offer a sustainable menu of services and programs.
Community partners and organizations provide certain
services such as sports leagues and youth services.
The four main methods of providing and enabling
services include (1) direct provision by the Municipality;
(2) community development practices in supporting
community-based groups; (3) promoting other providers
(e.g., not-for-profit, and for-profit services); and (4)
contracting third-party providers. Clarington’s
Community Services Division aims to provide safe and
enjoyable experiences for residents in public spaces.
Research shows that participation in recreational
activities has many benefits, including better health outcomes, improved community
cohesion, and increased community pride. The Division’s service delivery model
primarily involves engaging community groups and organizations to deliver programs
and services. If a gap is identified, staff seek the community's help to provide the
service, utilizing municipal spaces. The Municipality provide s direct services where
there are no community organizations that can address a new service requirement.
Bowmanville Library
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Clarington Libraries, Museums and Archives
In 2020, the Municipality of Clarington merged the Museum and Archives Board with the
Clarington Library, now Clarington Library, Museum & Archives (CLMA). This merger
recognizes that libraries, museums, and archives are natural partners as they offer
universal access, support for life-long learning that enhance community development,
and act as a gathering place for social interaction and engagement. There were also
operational and governance benefits associated with merging the two entities such as
efficiencies with respect to program delivery and public education to create an
enhanced user experience, collection development and storage, key performance
indicators, staffing, policy development and more. While the merger did not result in an
expansion of library space or budget, the responsibilities and management of the
Clarington Museums and Archives were transferred to the Clarington Public Library
Board (now CLMA).
CLMA’s organization reflects the thriving “GLAMs” sector (galleries, libraries, archives,
and museums). GLAMs play an important role in protecting, preserving, and promoting
Canadian history, as well as providing resources for research, education, learning , and
artistic creation. GLAMs offer similar opportunities to the community and , as a result, it
is common for them to work together to provide services efficiently and effectively. To a
certain degree. Some libraries, including CLMA, also incorporate galleries to display
works by notable artisans and crafts persons.
Supporting Staffing to Deliver Exceptional Services
This Master Plan identifies a broad range of needs for parks, facilities, programs and
services to respond to a growing population and changing interests. It will be important
for Clarington to ensure that it’s Municipal and CLMA staff complement grows and
evolves in tandem to ensure that exceptional parks, facilities, services, and programs
are being delivered, operated, and maintained to provide residents with a high quality of
life. In addition to appropriate staffing levels, there will be a continued need for staff
support including, but not limited to, technology and equipment, professional
development and training, and other supports to function as a high performing
organization. Additional details regarding staff needs to implement the
recommendations advanced through this Master Plan is provided under a separate
cover.
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Recommendations
77. Provide Municipal and CLMA staff with appropriate supports to deliver
exceptional services, which may include, but not be limited to, technology and
equipment, professional development and training, and other supports to
function as a high performing organization. Appropriate staffing levels must also
be considered to implement the recommendations of this Master Plan and
should be guided by the organizational and staffing review provided under a
separate cover.
6.2 Programs, Services and Resources
Municipality of Clarington Programming
Clarington’s Community Services Division evaluates
opportunities for each age group and seeks to
provide a variety of options to encourage lifelong
engagement. The evaluation identifies gaps in service
delivery and ensures that programming addresses
emerging demographic groups. The Division seeks to
provide a range of choices, including aquatics, drop -
in opportunities, active/sport, general interest,
creative and STEM programs. Staff provide services
efficiently with high satisfaction levels.
Providing and enabling a variety of recreation choices allow residents to try and master
new things, thus encouraging lifelong engagement. In Clarington, staff and/or
community groups or organizations provide activities, allowing a greater wealth of
community resources and the capacity for more experiences for residents. One of the
baseline evaluation methodologies for recreation programs and services is to assess
opportunities for each age group. This ensures that each age cohort has barrier-free
access to various programs and services (at a minimum, aquatics, drop-in opportunities,
active/sport, general interest, creative and STEM programs). The value of this exercise
is to look at any gaps in service delivery and ensure that programming addresses
emerging demographic groups (such as the growth of young people and families
moving to the Durham Region).
In evaluating the range of choices, there appears to be gaps in STEM programming for
all ages and a lack of cultural and creative opportunities for pre-school, youth, and
families. Identifying these gaps is a challenge because data has only been used for
directly provided programs and services through the Municipality. Expanded data
collection of resident participation in programs and services provided by service delivery
partners, including the CLMA, will be an important endeavour in the future. This will
allow staff to understand the capture rate for each age cohort.
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Registered Community Services Programming
The Community Services Division offers a wide range of programs and drop -in
opportunities for residents of all ages. Table 24 outlines the breadth of services directly
offered to each age group and the respective participation. The participation numbers
do not include the number of attendees to activities that are led by community
recreation and sport organizations. To understand total participation and overall impact
of recreation, culture and sport per age group, staff should collect participant data per
age group for all programs and services offered to gain a more fulsome perspective of
participation.
Table 24: Registered Community Services Programming, 2022
Program Type Preschool Children Youth/Young
Adult Adult Older
Adult
Sport, active, general
interest, specialty 710 640 230 1,550 2,800
Aquatics/Leadership 1,800 1,900 170 80 -
Camps - 1,610 - - -
Total 2,510 4,150 400 2,630 2,800
Total Direct Program Participants 12,490
Note: Participation in older adult aquafit programming included in sport, active, general interest and
speciality programs.
Drop-in Community Services Programming
Drop-in activities are scheduled at similar times each week and appeal to participants
and families who prefer to use facilities on a casual basis as their schedules permit.
Drop-in programs are reaching their per-Covid participation numbers and will increase
as the availability of staff permit (Table 25). Clarington is advancing participation in
programs to pre-COVID levels in most activities and has surpassed it in some.
Table 25: Drop-in Community Services Programming, 2022
Activity Annual Participation
Drop-in Swimming 66,300
Drop-in Skating 12,700
Total 79,000
Increase the Number of Youth Leaders
In 2022, programs and services provided by the Municipality’s Community Services
Division recovered by 56% of the 2019 levels in pre -school, children, and youth
registered program opportunities. Staff could not offer the former breadth of programs
due to a lack of student program leaders. This is largely due to not having an adequate
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supply of youth leaders who generally provide program, aquatic, and camp leadership
opportunities. Many initiatives are ongoing to increase the number of youth who are
qualified to apply, especially in aquatics, where training can take a few years and one
must be of age to obtain the qualifications needed. The Municipality also offers
discounts and incentives for leadership courses, which has a dual purpose of
developing leadership skills among youth and expanding the pool of potential skilled
workers. While time may solve this issue, the pent-up demands in aquatics require
greater focus. Other municipalities in Ontario have worked with school boards to provide
leadership courses for credit toward a high school diploma.
Older Adults
According to the 2021 Census, 29% of Clarington’s residents are over the age of 55,
and this population is anticipated to increase due to aging of the population. The
Municipality has an agreement with the Bowmanville Older Adult Board of Directors at
the Clarington Beech Centre regarding service delivery to the older adult population.
The Centre is responsible for offering programs and services to older adults within the
facility, while Municipal staff and partners offer programs and services in other muni cipal
facilities.
Participation in older adult activities offered by the Municipality has increased by 1,150
participants since pre-COVID. Increases are seen in group fitness opportunities and
sport and active play opportunities. Obtaining participation levels in programs a nd
services is key to identifying overall participation by the older adult population.
The last Older Adult Strategy was approved in 2017 with a five-year horizon and
initiatives are being addressed with respect to service provision and facility spaces. It
will be important to work with all service providers to get a better sense of particip ation
amongst this age group – especially since Clarington will witness an increase in this age
cohort over the Master Plan period.
Strengthen Volunteerism with Community Stakeholder Groups
Clarington’s Community Services Division relies on
community partners and not-for-profit organizations to
deliver services. This is an appropriate approach
given that it engages the community in taking
ownership and addressing key community needs as a
collective. Some factors that could impact the delivery
of a wide range of choices in the future may include a
decrease in volunteerism in Ontario overall.
Population growth may pla ce increased demands and
the capacity of the Municipality to provide more
programs and services directly will be impacted.
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During the community consultations, stakeholder groups indicated that attracting,
training, and retaining volunteers is a continual challenge for the long -term sustainability
of the groups. While the CLMA is not as reliant on volunteers, opportunities for the
Municipal staff to work with CLMA staff to reduce duplication and fill gaps in program
and service delivery should be pursued.
Gender Equity in Sport and Recreation
The Federal government aims to achieve gender
equity in sport by 2035. National studies (The Rally
Report – Canadian Tire Foundation) indicate less
participation in sport and recreations by females and
those who identify; this decline usually occurs in
adolescence. Females stated lower levels of
confidence, low body image, lack of skill and feeling
unwelcome in a sport environment.
The Canadian Women in Sport (CWS) supports and
enables girls, women, and gender-diverse people to
pursue sports and active lifestyles, keeping women
actively engaged in building community capacity. CWS’s priority and focus is to develop
and support sustainable models where women are trained to lead and promote active
opportunities in concert with community partners such as municipalities, universities,
and not-for-profit organizations. They have many resources that are readily available to
audit policies and practices and build capacity within the organization. In Clarington,
female participation in community-driven sport and recreation has not been prioritized
specifically. This is a national priority and Clarington could readily utilize tools provided
by CSW and audit which interventions and inclusionary efforts are required. Specifically,
the Same Game initiative, led by the CWS, offers municipalities support, including one -
on-one coaching, e-learning modules, honorariums, knowledge transfer, and resources.
This report does not presume that there is greater participation in recreation and sport
by males - it does suggest an audit of participation by age group s in all directly and
indirectly provided services utilizing Clarington public spaces, to determine if there are
any inequities.
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Increase Physical Activity Levels
Canadians continue to require greater levels of physical activity to achieve and maintain
optimum health and reduce incidents of chronic illness. Municipalities, including
Clarington, work with a collective of invested parties to increase the duration, frequency,
and intensity of physical activity.
Canada’s 24-Hour Movement Guidelines have replaced the Physical Activity Guidelines.
The new guidelines were introduced in 2020 and depict the amount of time various age
groups should “Sweat, Step, Sleep and Sit” in a 24-hour timeframe. Table 26
summarizes the movement guidelines for children between the ages of 5 and 17.
Table 26: Canada's 24-Hour Movement Guidelines
Activity Time / Day
Sweat 60 minutes of moderate to vigorous physical activity
Step Several hours of moderate physical activity
Sleep 9-11 hours for 5 – 13-year-olds
8-10 hours for 14 – 17-year-olds
Sit Limit sitting for extended periods
No more than 2 hours of recreational screen time per day
Source : https://csepguidelines.ca/guidelines/children-youth/
These new guidelines have been developed for all age cohorts and should be
communicated and promoted to the public within facilities, online, and in promotional
materials. Opportunities to co-develop and promote activities alongside community
partners should be pursued.
Demand for Outdoor and Virtual Programming
Over the past number of years, there has been a growing demand for outdoor
programming to better connect with nature. The demand for these opportunities was
heightened due to the COVID-19 pandemic and while indoor community programming
has resumed, many communities, including Clarington, continue to receive requests in
this area. From a facility perspective, this demand has resulted in the development of
indoor spaces that seamlessly transition to the outdoors or designing multi -purpose
spaces with access to outdoor areas.
The Municipality and CLMA currently provide limited outdoor programming, although
some exist such as CLMA’s StoryWalks program that combines reading with parks and
trails. CLMA has created StoryWalks at locations such as along trails within the Central
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Lake Ontario Conservation Area and opportunities exist to expand this program across
Clarington’s parks system such as along the waterfront trail and other strategic
locations. There may also be opportunities for the Municipality to utilize its parks and
open spaces to offer programming such as group fitness, education, and stewardship; it
should be recognized that there may be some constraints with offering outdoor
programming that may limit the types of programming that’s offered given that there
may be requirements for equipment, access to washrooms, and physical accessibility.
During the pandemic, municipalities and library systems adapted to lockdowns and
closures by offering virtual programming. Now that in -person programs and services
have resumed, communities are assessing their experiences with virtual programming
to identify best practices that have emerged that can be applied to program planning
and offerings. In many cases, virtual programs have allowed program providers to reach
new audiences and combat residents experiencing isolation, particularly those who may
not be capable or comfortable with visiting in-person facilities. There is value in
continuing to offer a hybrid of in-person and virtual programming as a strategy to
increase inclusion and break down barriers.
Library Programming
The significant value of CLMA programming
cannot be underestimated. Not only do they
augment CLMA’s collections and resources, but
they also provide huge benefits in terms of
enhancing traditional literacy skills as well as
digital literacy skills. These programs can often be
seen as an introduction to topics and interests that
might be otherwise unattainable to members of the
community. Skills and interests such as
photography or creative writing are introduced by
library programs in a way that breaks down
barriers and foster inclusion within a community.
CLMA programming is broad and ranges from early literacy and early learning, summer
reading, teen and senior programming, newcomer programs, technology literacy, and
more. In 2023, nearly 30,000 people participated in CLMA programming, which was an
21% increase from 2018 (Table 27). CLMA programming is open for children, young
adults, adults, and seniors. Children make up the majority of program registrants, while
young adults make up the largest increase in program participants, which increased by
nearly 600%.
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Table 27: Participation in Library Programs by Type
Program Type 2018 2019 2022 2023 Change (%)
Literacy programming 19,480 21,369 7,456 18,608 -4%
STEAM programming 19 186 67 189 895%
Teen programming 27 141 196 542 1,907%
Adult learning programming 2,341 2,039 393 972 -58%
Adult recreational
programming 1,621 713 479 1,187 -27%
Community development
programming 3,734 4,687 4,562 11,425 206%
Total 27,222 29,135 13,153 32,923 21%
Clarington’s growing population creates an opportunity for CLMA to diversify the scope
of programming, particularly as it relates to newcomer and multi-cultural programming,
which will become a greater focus during the Master Plan period; the consultation
process for this Master Plan also found that there was a growing interest in cultural
opportunities. Improving program participation for young adults, adults , and seniors
could also be considered given that participation levels among these age groups are
much lower compared to children, although it is recognized that these age groups are
historically more of a challenge to engage due to factors such as other competing
interests and priorities.
During the planning horizon, partnering with others to provide programming will also
play a role in delivering services or at the very least, coordinating with other providers. A
cursory overview of CLMA’s program guide suggests that there may be some program
overlap with activities that are offered by others. There may be opportunities to work
collaboratively with partners, including the Municipality and community organizations to
share resources and space, deliver joint-programming, cross program, and minimize
service duplication with the view of improving efficiencies. This strategy is consistent
with CLMA’s 2023-2027 Strategic Plan that identifies a goal to become a highly valued
community partner.
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Library Collections and Resource Selection
CLMA is proud of its strong usage rates for physical
resources, although there have been significant increases
in digital resources (Table 28), and it is a reality that will
require a balancing act of space versus demand for both
existing and future library locations. Guidelines
established by the Administrators of Rural and Urban
Public Libraries of Ontario identify that libraries are
decreasing in the size of their physical collections due to
several factors:
• The growing use of digital resources;
• Decreasing usage of print and formats such as
CDs and DVDs because of costs and/or
availability;
• The requirements of providing accessible shelving;
and
• The need to repurpose space for other functions
(e.g., lounge space and multi-purpose rooms).
CLMA has experience with adaptive reuse of existing
space to respond to user demands and provide more functional spaces with the past
expansion of the Courtice Library Branch that resulted in enhancements, including new
gathering and multi-purpose space, as well as a makerspace, and the planned
renovation of the Bowmanville Library Branch that will enhance the use of space,
including providing space for museum and archive collections.
Aligning with trends in other library systems, CLMA also offers a well-stocked “Library of
Things”. This collection makes items available such as “Bookclub in a Bag”, Bookwork
Bundles, cognitive care kids, seeds, hiking backpack, binoculars, board games, sensory
and therapy kids, community passes, technology, and more. This lending concept
promotes the circular and sharing economy, which is a key action identified in CLMA’s
2023-2027 Strategic Plan, has many benefits for the environment and can break down
barriers for members of the community by providing access to amenities they may not
otherwise be able to afford.
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Table 28: Library Materials and Resources
2018 2019 2022 2023 Change (%)
Physical Circulation Size 569,067 590,550 551,497 707,934 24%
Digital Circulation Size 116,566 183,019 294,500 209,011 79%
Website + Library App
Sessions 847,964 975,141 1,745,741 1,566,242 85%
Public Computer Access
Sessions 58,097 52,520 23,497 24,932 -57%
Wireless Internet Sessions 191,859 156,311 200,545 248,125 29%
Inquiries 5,096 3,588 10,348 n/a 103%*
Items Printed 25,505 48,223 118,670 n/a 365%*
*Based on the year 2022.
The development of CLMA’s collections and materials is guided by a policy (ADM 04)
that speaks to the principles of selecting materials, selection criteria, material access,
new formats to consider, digital collections, parental responsibilities, deselecti on,
interlibrary loan services, and more. Over the next ten years, CLMA has planned for
acquiring over $2 million in new materials. Similarly, CLMA has a Museum Collections
Management Policy that outlines responsibilities of CLMA and sets standards for
acquiring, documenting, preserving, and deaccessioning (removing) museum
collections. Regularly reviewing these policies will ensure that CLMA’s collection
continues to reflect relevant subjects for current and future users, and it will be a vital
resource for procurement, selection, and deselection in a rapidly changing environment.
Physical collections will continue to coexist with emerging digital formats for the
foreseeable future and it illustrates the necessity of maintaining a diverse collection to
meet the needs of the entire community. This will continue to require robust and
sustained funding for CLMA as the population increases and new locations are built. For
communities across Canada, including Clarington, this represents an investment in the
Municipality’s future prosperity. This is supported by economic research as a repo rt on
public libraries in Canada estimate that for every 1% increase in literacy for adults, an
annual benefit of $67 billion could be created, which is equivalent to an extra $1,800 for
every Canadian.21
21 Canadian Urban Institute. Overdue: The Case for Canada’s Public Libraries. 2023.
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Technology Within Libraries
Modern libraries are not only focused on literacy programs, but also support experiential
activities that provide library users with opportunities to embrace their creativity through
traditional means and modern technologies. Libraries are also viewing technology
through the lens of equity. In addition, libraries have recognized the huge role they play
in advancing not only digital literacy but also digital inclusion. Without e quity of access
to technology, society risks a widening digital divide placing the library in an essential
role as the bridge.22
During the COVID-19 pandemic, CLMA pivoted to online programming to continue to
connect with and engage residents such as through virtual book clubs. While library
branches have reopened to the public, there continues to be an interest in online
programming for residents who may not be comfortable with using in -person services,
or they lack transportation. It is expected that the hybrid-approach to offering online and
in-person library services will continue over the foreseeable future to maximize
community engagement.
For those who do not have the means to own hardware or to pay for internet access at
home, CLMA’s free in-house WIFI and computers, as well as loanable technology (e.g.,
chromebooks, mini-maker kits, mobile hotspots, cameras, assistive technology, etc.)
facilitate the crucial activities of learning, working, and communication for many
community members. According to the Urban Libraries Council “In Canada, 66% of
households with incomes less than $32,000 don’t have broadband or computers.”23
Just as important, public libraries must also focus on new and emerging technology
services such as makerspaces, which are shared, community spaces that foster
creativity and innovation, support collaboration and interaction amongst peer and like-
minded individuals, and facilitates skill development and life -long learning. They provide
access to low- and high-tech tools and equipment for free, teach people how to use
tools, and introduce them to new techniques and skills through workshops, training, and
educational programming.
22 Nordicity and Toronto Public Library. Technology Access in Public Libraries: Outcomes and Impacts for
Ontario Communities. www.torontopubliclibrary.ca/content/bridge/pdfs/nordicity -full-report.pdf
23 Urban Libraries Council. Leadership Brief: Digital Equity in the Age of COVID-19.
www.urbanlibraries.org/files/Leadership -Brief_Digital -Equity.pdf
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CLMA is playing a part in the Municipality’s drive
towards innovation and smart technology through the
development of the new makerspace at the Courtice
Community Complex branch. The new makerspace
foreshadows the next iteration of technology services
to spark creativity among users. Now more than ever,
libraries must work hard to plan services that
integrate more advanced skill building for its
community as Artificial Intelligence (AI), Virtual
Reality, and other emerging technologies become
mainstream.24 Over the next ten years, CLMA plans
to invest over $800,000 towards technology upgrades
and replacement for in-house infrastructure and
equipment for staff and library users. As the public library system grows to meet the
needs of current and future residents, technology requirements will also increase.
Technology-related library programming, beyond makerspaces, as well as electronic
resources, will continue to be an important building block in CLMA’s efforts to enhance
digital literacy skills alongside traditional literacy skills. As part of this, CLMA is currently
in the process of digitizing its archive resources to expand its reach to users. To build
upon these efforts, a robust technology strategy is needed to continue to include ways
to incorporate technology into all library areas, including program ming and services, as
well as facility development and renewal.
Recommendations
78. Collectively, the Municipality and CLMA should engage with community partners
to expand STEM program opportunities, outdoor programming, and creative
programming for all age groups to address current gaps and plan for meeting
future needs. Clarington’s Community Funding Program should continue to
recognize the value community partners provide in providing community -based
programs.
79. Expand municipal data collection to determine the penetration and retention
rates of the various age cohorts in recreation, culture, library, and sport activities
including programs offered in all municipal, school and library facilities
(registered and drop-in opportunities).
24 Urban Libraries Council. Leadership Brief: Digital Equity in the Age of COVID-19.
www.urbanlibraries.org/files/Leadership -Brief_Digital -Equity.pdf
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Recommendations
80. The Municipality and CLMA should continue to offer and expand its range of in-
person and virtual programs to reach a wider audience, which may be done in
partnership with community partners and other program providers to share
resources and space.
81. Expand the CLMA’s StoryWalk program within Clarington’s parks system,
particularly along trails and pathways.
82. Undertake an update to the Older Adult Strategy by engaging older adults and
all related partners to ensure services are inclusive of an aging and increasingly
diverse older adult population.
83. Regularly review, identify, and assess partnerships or collaborations as
programs and services are planned to share resources, deliver joint-programs
and services, cross program, and minimize service duplication with the view of
improving efficiencies.
84. Work with community stakeholder groups and partners to enhance volunteer
recruitment and retention strategies.
85. Audit participation among females and those who identify as females to identify
strategies to increase participation, in partnership with Canadian Women in
Sport Association.
86. Work with secondary schools to offer leadership courses for a credit toward a
high school diploma and look to subsidize leadership courses (including aquatic
leadership) until adequate staff numbers are achieved.
87. Work with community partners to promote Canada’s Movement Guidelines for
all age groups.
88. Create a technology strategy for CLMA, potentially in partnership with the
Municipality, to guide infrastructure investment and modernization of the CLMA,
including in-branch hardware and software, makerspaces, and other technology -
related space requirements, as well as equipment for the Library of Things.
Exploring the role of artificial intelligence in the library system and in the
Municipality should also be an on-going initiative.
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6.3 Diversity, Equity, and Inclusivity
Municipalities and library boards are setting policies
and undertaking operational efforts to define who is
underrepresented and may face barriers to equitable
delivery of services. Defining who may face
impediments to service provision is job one with
engagement efforts following. There is a long -term
sentiment which states “Nothing About us Without Us”
which is a reminder to staff and volunteers not to
assume what barriers exist and what program
modifications are needed. Co-development of
programs and services is the key to creating
ownership and higher satisfaction levels. As
illustrated in Table 29, Clarington has a diverse population base, and it is expected that
this segment of the community will continue to grow as the population increases.
Table 29: Estimated Population of Select Population Groups
Population Segment Proportion of 2021
Census Population
Estimated Clarington
Population
Indigenous Peoples 3% 2,600
Persons with Disabilities 22% 24,000
Persons Experiencing Low Income 5% 5,400
2SLGBTQIA+* 4 to 14%** 4,300 – 13,900
Visible Minorities 16% 16,600
Women, girls, and those who identify 51% 54,600
Source: Statistics Canada 2021 Census
**Statistics Canada data indicates that through self-reporting, 4% of the Canadian population offer that they are part
of the 2SLGBTQIA+ community. A study completed in 2019 by the Jasmin Roy Foundation entitled “LGBT Realities”
found that 14% of the population identified as part of this community. A range is used to calculate the potential
number of residents in this community.
The Municipality’s Inclusion, Diversity, Equity and Anti -Racism (IDEA) Strategy outlines
several actions to ensure that Clarington is a welcoming place for all residents. The
IDEA Strategy speaks to internal priorities such as using inclusive language, creating
safe spaces, staff training, and providing IDEA-related resources and supports to all
departments. External priorities are also identified such as working with the Clarington
Diversity Advisory Committee to increase diversity at community events, create a
student bursary program, create and implement an anti -racism and anti-discrimination
plan, and more.
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Clarington Council has also approved the Inclusive Spaces Policy developed jointly by
the Diversity Advisory Committee and staff to ensure that all publicly owned and
managed spaces are welcoming, inclusive, and free from harassment, racism, and
discrimination.
Other corporate efforts to strengthen diversity and inclusion initiatives internally include
the formation of the Diversity and Inclusion Staff Team and the Truth and
Reconciliation Staff Team as well as the creation and hiring of a staff position – the
Inclusion, Diversity, Equity and Anti-Racism Officer. Staff teams address the
implementation of work to cement inclusion efforts within departments and as services
are delivered.
Departments are responsible for ensuring the corporate requirements are met, as it
relates to their service area. Many Departments have additional best practices or
industry standards related to their service area related to inclusion, equity, and diversity
as does Community Services. CLMA has also made a commitment to ensuring equal
access and participation for all residents and strives to remove and prevent barriers to
accessing services.
Persons with Disabilities
The 2017 Canadian Survey on Disability found that
approximately 22% of Canadians are living with some
form of disability (e.g., physical, intellectual, sensory,
and mental). Applying the national rate to Clarington’s
population suggest that there could be over 25,000
Clarington residents living with some form of
disability. The Municipality is committed to making
its public facilities barrier free, where possible,
through its Multi-Year Accessibility Plan, which is
currently being updated to outline new strategic
objectives, targets, and steps to enhance accessibility
within its facilities, as well as service delivery
throughout the corporation.
From a space perspective, the Municipality’s previous 2018 -2023 Multi-Year
Accessibility Plan focused on the inclusion of mobility device charging stations in new
and redeveloped public spaces and enhancing the accessibility of new and redeveloped
playgrounds. The Municipality is also accommodating of persons with disabilities within
programs and services and provides or permits necessary supports to ensure that
individuals feel welcomed. Residents can register for support from Inclusion Services
and allows personal support workers to attend recreation programs and drop -in
activities to support an individual. The Municipality also promotes inclusive recreation
programs that are provided by others such as Grandview Kids.
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The Municipality continues to engage the Clarington Accessibility Advisory Committee,
the public, and persons with disabilities prior to developing or constructing new public
spaces and meeting or exceed the requirements of the Design of Public Spaces
Standard to ensure that its spaces are barrier free for residents regardless of ability
(including parks and trails).
CLMA has also made efforts to prevent and remove barriers within its physical spaces ,
including providing mobility charging stations, priority computer stations, hearing loops,
accessible service desks, and wheeled accessibility walkers. The multi -story
Bowmanville Library branch features an elevator, Braille signage and audio
announcements, and all library branches and the Sarah Jane Williams Heritage Centre
are wheelchair accessible; Waverley Place is not wheelchair accessible due to the
historic nature of the building.
Engaging Households Experiencing Low Income
Clarington’s key policy that provides funding and greater access for persons
experiencing low income is the Fee Assistance Policy (FAP). The Policy is open to all
Clarington residents and each recipient receives up to $300 annually to register in
programs and services. Residents obtaining an income which is 25% higher than the
Lower Income Cut-Off (LICO) will receive a $200 credit annually. Recipients complete
an annual application to ensure their eligibility. Some programs or services are
excluded, including facility rentals, birthday parties semi-private or private lessons,
personal training and programs delivered through contracted services. The Municipality
also offers persons with permanent or temporary disabilities access to a discount for
membership services.
In 2023, the Municipality’s FAP benefited over 30,000 people , which is a commendable
effort. The challenge to participants is that as fees for services increase the number of
programs allowed under the Policy may decrease due to stagnant funding levels per
person. It is recommended that as fees increase for services that the allowance for
subsidized participants increases accordingly. Increasing the range of free programming
for residents should also be explored, which could be offered through sponsorship
opportunities to further enhance access to recreation.
CLMA provides a broad range of free activities to the community, although there are
some fee-based programs. CLMA also proudly promotes and connects residents to
various social services and organizations to assist those experiencing financial
challenges.
Creating Safe Spaces for the 2SLGBTQIA+ Community
The Two-Spirited, Lesbian, Gay, Bisexual, Transsexual, Queer, Intersex (2SLGBTQIA+)
community often experiences exclusionary behaviours. There is recognition that 13% of
the Canadian population identifies as LGBTQ2S+, which could equate to approximately
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13,900 Clarington residents. More intentional efforts are needed to provide welcoming
environments to this segment of the community.
The introduction of “Safe Spaces’ is one way of welcoming the 2SLGBTQIA+
community to public places. Safe Spaces was developed by Safe Spaces Canada
whereby signage on the front entrance of a community space indicates that staff have
been trained in reducing homophobic and transphobic gestures and slurs and in
creating welcoming environments. Other strategies include the development of
universal washrooms in public facilities.
Public Facilities are Third Places and Social Spaces
In The Great Good Place, sociologist Ray Oldenburg suggests that people need three
places in their lives, with home as the “first place”, work/school as the “second place”,
and an undefined “third place” that represents public life and community (such as a
community centre or library). Oldenburg writes: “The third place is a generic designation
for a great variety of public spaces that host the regular, voluntary, informal, and happily
anticipated gatherings of individuals beyond the realms of home and work.”
Fundamentally, third places are community spaces that are free or inexpensive,
accessible, welcoming, and comfortable. People choose to visit and spend time in third
places – they are not required to be there and can come and go as they please. Third
places are warm and welcoming, and foster belonging and community pride. And third
places are levelling spaces, where everyone is accepted, valued, and encouraged to
participate, regardless of their background, identity, or socio -economic status.
Clarington and CLMA’s facilities and spaces play an important role as third places that
offer safe and inclusive spaces that are welcoming of all residents, regardless of age,
cultural background, orientation, income, gender identity, etc. Municipality and CLMA’s
spaces and services support civic engagement, social inclusion and equity, a culture of
learning and multiple literacies, and economic vitality in Clarington. Furthermore, the
pandemic resulted in more people working from home and, for some, this m ay become
permanent. These trends mean that new and renovated community spaces need
technology-equipped spaces that can be reconfigured for different sized groups as well
as areas that act as community “living rooms” with comfortable, casual seating.
Municipality and CLMA facilities can also be used as social spaces to facilitate the
physical coordination and collaboration with social service agencies such as Durham
Region, Canada Healthy Communities Initiative, Ontario Works, etc. that directly serve
at risk and marginalized populations to provide services, supports, and resources,
including housing, food security, financial stability and literacy, crisis intervention, and
more. The gaps in serving the needs of vulnerable members of society have been
highlighted during the pandemic and CLMA (in particular) has been playing a role in
facilitating services and to close the gap.
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In the new normal brought about by the pandemic, staff are balancing the needs of
marginalized communities with the need to provide a safe working environment for their
teams as well as a safe space for everyone else using public spaces. It has become
apparent that all public spaces, especially those in urban areas, are finding themselves
problem solving for patrons who are experiencing homelessness, addiction, mental
health challenges, and poverty. Locally, CLMA is no exception as the organization has
experienced first hand an increase in residents using library space to access social
services or to seek respite. It will be important for staff to monitor best practices in other
communities to address this growing trend, which may be addressed through staff
training or enhanced security measures such as hiring security personnel.
Newcomers and Cultural Diversity
Public facilities such as Clarington’s community centres and CLMA’s spaces are
important civic resources that provide newcomers with information on important
community services such as settlement services that are provided by the Government
of Canada and Durham Region. Approximately 15% of Clarington’s population are
immigrants and with estimates of 500,000 new immigrants in Canada annually,
Clarington will continue to welcome new residents each year.
It is anticipated that future residents will be more culturally diverse than before. The
Municipality and CLMA will need to continue to assess the impact of newcomers and a
diversifying population on its offerings and adapt to ensure they feel welcomed and
have access to resources. Consideration will need to be given to what newcomer
services will look like, what services should be strengthened or added, if there are
opportunities to build upon partnerships between the Municipality, CLMA, Durham
Region, and others. There may be implications on programs and services that are
provided and from the CLMA perspective, there may be an impact on multilingual
collections, as well as how museum and archive services need to evolve to draw
interests from a more diverse audience. Working in partnership and in collaboration with
the Diversity Advisory Committee and others will be important to address needs.
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Recommendations
89. Continue to complete Barrier Removal Accessibility Audits of all Municipal
buildings and make strategic investments, through the capital budget, to improve
access.
90. Develop a resource to assist the Community Services Division and CLMA in
identifying and engaging underrepresented populations to increase participation
and ensure that opportunities are inclusive of all residents. Having regard for
relevant actions contained in the Municipality’s Inclusion, Diversity, Equity and
Anti-Racism (IDEA) Strategy is recommended.
91. Regularly review CLMA collections, resources, and services to ensure that they
reflect the needs and interests of a diversifying community.
92. Increase the allowance under the Access Policy for residents experiencing low
income as fees for services rise to ensure that the number of opportunities
remains similar on an annual basis. The program should be reviewed regularly
to ensure the funding provided and eligibility requirements continue to achieve
the objectives of the program.
93. Create a sponsorship program to offer free Municipal programming for residents.
94. Ensure all staff and volunteers are trained to ensure that Municipality and CLMA
facilities are safe spaces for all through Safe Spaces Canada.
95. Continue to work with community partners to provide social services and
resources for at risk and marginalized populations, while balancing the need to
provide safe and welcoming spaces for all.
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6.4 Communication and Marketing
Effective means of community outreach and awareness are critical to ensure that there
is a high degree of community engagement. With an overwhelming amount of
information being directed to people in their daily lives combined the Municipality and
CLMA’s finite resources, the ability to effectively reach residents can easily get lost.
The lack of awareness about programs and services that are offered is commonly
identified as a barrier, which was apparent through the consultation process. This has
become a greater challenge particularly as the programs and services being offered by
the Municipality’s Community Services Division and CLMA have transformed
significantly compared to previous generations.
Compounding challenges are the different forms of communication that are favoured by
different markets. For example, social media advertising may be more effective for
younger generations, while print media and word-of-mouth may be more accessible for
older generations. The Municipality and CLMA recognize the importance of meaningful
communication as they are identified as key priorities in their respective Strategic Plans.
This is supported by this Master Plan to ensure that residents have a full understanding
of programs and services that are available from the Municipality and CLMA. Tactics
include continued use of digital resources such as websites to ensure that it is up to
date, modern, and user friendly, encouraging or incentivizing existing users to help
spread the word (e.g., bring a new friend), using a mix of traditional and digital media to
promote opportunities, working with community partners, and engaging the community
through community events.
Recommendations
96. Continue to promote and raise awareness about the programs and services
provided by the Municipality’s Community Services Division and CLMA using a
range of print and digital tactics. Opportunities for cross promotion and
collaboration between the Municipality and CLMA is encouraged .
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7. Implementation Strategy
7.1 Monitoring, Reviewing and Updating the Plan
The Parks, Recreation and Culture Master Plan is based on the most recent data and
information available today, as well as community input from residents, stakeholders,
municipal and CLMA staff, and Council. These inputs will change over the life of the
Master Plan and so it will be important to regularly review, assess, and periodically
revise recommendations or the timing of implementation to ensure that they are
reflective of local conditions and responsive to evolving needs in Clarington. This will
require monitoring trends and population growth, particularly as intensification areas are
developed, tracking facility use and participation, and regular dialogue with the
community. Understanding these evolving factors will assist with undertaking an update
to the Master Plan every five years (next update in 2029).
Reviewing the Master Plan requires a commitment from all officials and staff involved in
the financing, planning, designing, development, and operations of parks, recreation,
and culture in Clarington, as well as from the CLMA. The Master Plan also requires the
support of stakeholders, and the public. The following steps are recommended to
conduct a regular review of the Master Plan.
• Review of the past year, including recommendations implemented, capital
projects underway/ongoing, success/failure of new and existing initiatives,
changes in participation levels, etc.;
• Identification of issues impacting the upcoming year such as anticipated financial
and operational constraints, emerging opportunities, updated population data
and forecasts, etc.; and
• Prepare a staff report to identify recommendations planned to be implemented in
the coming year with consideration given to timing, which may be adjusted
based on funding capacity or external funding opportunities, community input,
partnership potential, population growth, etc.
Recommendations
97. Regularly monitor implementation of the Master Plan, including tracking
population growth and trends, development of intensification areas, monitoring
facility use and program participation, group registration, and regular dialogue
with the community.
98. Prepare annual reports to recognize achievements and work plans to identify
recommendations to be implemented over the coming year.
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Recommendations
99. Undertake a five-year update to the Master Plan (2029). Timing may be adjusted
depending on the pace of implementation or changes to the community.
7.2 Partnership Development
Clarington works with numerous community partners to deliver a broad range of
services through formal and informal third-party and joint use agreements with school
boards, the John Howard Society, Sportball, Early ON, Boys and Girls Club ,
Bowmanville Older Adult Association, and other groups. Maximizing meaningful
partnership opportunities is a key priority of Clarington’s 2024-27 Strategic Plan to fully
engage its residents in parks, recreation, and culture opportunities. Clarington’s
facilities, programs, and services are complemented by opportunities provided by others
to achieve various benefits including:
• Sharing resources and responsibilities;
• Providing new or maintaining existing public infrastructure;
• Enhancing customer service;
• Acquiring access to specialized expertise and knowledge;
• Reducing municipal resources including capital and operational costs;
• Providing groups with new sources of capital; and
• Optimizing and providing access to public facilities and spaces.
Clarington enjoys many of these benefits, but it is important to recognize the risks
associated with partnerships. For example, there is reduced control over program
quality, space allocation, setting of fees, or service interruptions, and although these
services may be provided by a third-party, the Municipality and/or CLMA may be on the
receiving end of concerns or complaints. There may also be the possibility of partners
who may not be able to continue providing their program/service, requiring the
Municipality and/or CLMA to have to step in to respond quickly to assume
responsibilities, which would have implications on staffing and operational costs.
Another risk is that if a facility, program or service declines in utilization or it is no longer
feasible to provide, it may result in a loss in service to the community or neighbourhood.
Evaluating the benefits and risks of partnerships will be important to ensure that existing
and future facilities, programs, and services continue to be provided in a manner where
resources are shared, rather than relying on the Municipality and CLMA to meet all the
community’s needs. The Municipality and CLMA recognize the importance of continuing
to strengthen relationships and to pursue new collaborative opportunities. The
following criteria should be considered when evaluating new, or renewing existing,
partnership opportunities, which may also be supported b y a feasibility study (the
development of standardized partnership agreements should also be explored to ensure
that they are considered the same):
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• The purpose of the proposed partnership and how it aligns with Municipal ,
Department, and CLMA goals, mandate, and philosophies;
• The role of the Municipality and/or CLMA in the proposed partnership;
• Whether there is a quantifiable or justified need for the partnership in the
community;
• If there is a cost-benefit to establishing a partnership;
• How the partnership can be appropriately accommodated within the
Municipality’s and/or CLMA’s long-term capital and/or operating resources;
• If the partner is sufficiently capable/qualified to operate a facility and/or deliver
the program/service over the long-term and in compliance with legislative policies
and municipal standards;
• That the level of risk is acceptable to all parties and there is a plan in place to
manage that risk;
• Whether the potential partner can provide the program or service on a sole basis;
and
• There is a full agreement of the terms, conditions, standards, and responsibilities
for all parties involved.
Recommendations
100. Partnership opportunities with community organizations, private sector, school
boards, community groups, and others should be explored as part of
implementing the Master Plan, taking into consideration the benefits and risks of
the partnership, which may be supported by feasibility studies and the
development of standardized partnership agreements.
7.3 Financial Considerations
The Master Plan requires financial investment in Clarington’s parks, recreation, culture ,
and library system and it outlines a series of priorities for new infrastructure to meet
growth related needs, as well as to upgrade, modernize, or renew aging assets to better
respond to community expectations. Clarington has limited resources, and it cannot
afford to do everything that the community desires, underscoring the importance of
undertaking this Master Plan to prioritize needs.
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Although the Municipality and CLMA may experience various challenges in meeting the
required financial and human resources to achieve the recommendations in this Master
Plan, it is expected that the Municipality and CLMA will make every effort to implement
these strategies through appropriate means. Full implementation of this Master Plan will
require a funding strategy that includes the consideration of the following tools to fund
capital costs for new construction or redevelopment of existing facilities :
• Development charges;
• Parkland cash-in-lieu reserves;
• Community benefits charges;
• Fundraising, donations, and sponsorships;
• User fees and surcharges;
• Leasing space from other property and/or facility owners;
• Debenture financing; and
• Grants and other funding programs.
High level capital cost estimates have been identified for the recommended new facility
needs to meet current and future needs towards 2036 , which are highlighted in Table
30. Exclusions include facilities that have already been planned through processes
beyond this Master Plan and replacement costs for existing facilities, as well as land
acquisition (if required). Unit costs are based on a combination of sources, including
facility costs in Clarington and costs used in comparable municipalities and reflect 2024
values. Indoor facility costs include an additional 25% for project costs to account for
site preparation, building contingency, and other soft costs such as project
management, and engineering and architectural fees, as well as applicable taxes.
Outdoor facility costs include components, site preparation , and surfacing. Municipal
staff have also reviewed the capital cost estimates to ensure consistency with local
experience and comfort with the estimates used for the purposes of this Master Plan.
Given that these are high-level capital cost estimates, they will need to be reviewed
and confirmed prior to any facility construction, or as part of a future Master Plan
update, as there are many factors that influence actual costs such as availability of
materials and labour, quality of fit and finishes, consulting fees, and other variables.
The timing for facility development can be found in the implementation section,
although this may be subject to change based on several factors such as the timing of
population growth and park development, facility usage, and trends. As a result,
regularly monitoring and tracking facility use is recommended and if necessary, timing of
development and projected supply needs should be evaluated prior to construction.
Detailed funding implications of the Master Plan’s recommendations are being prepared
under a separate cover to inform the Municipality’s future budgets and related initiatives
such as updating its Development Charges Background Study and undertaking a
Community Benefits Charge Strategy.
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Table 30: Preliminary Capital Cost Estimates for New Facility Needs
Facility Type Projected 2036
Facility Needs Unit Cost Total
Arenas (Ice Pads) +2 (63,000 sq. ft.) $750 per sq. ft. + 25% $59,062,500
Indoor Aquatic Centre +1 (25,000 sq. ft.) $950 per sq. ft. + 25% $29,687,500
Multi-Purpose Space /
Group Fitness Space +1 (7,000 sq. ft.) $600 per sq. ft. + 25% $5,250,000
Indoor Walking Track +1 (3,000 sq. ft.) $600 per sq. ft. + 25% $2,250,000
Library Space +32,300 sq. ft. $1,000 per sq. ft. +25% $40,375,000
Outdoor Rectangular
Fields
31.5 unlit fields (or
21 lit fields)
$350,000 per unlit field or
$500,000 per lit field
$10,500,000 to
$11,025,000
Ball Diamonds
17 unlit equivalent
diamonds (or 11 lit
diamonds)
$350,000 per unlit diamond or
$500,000 per lit diamond $5,500,000 to $5,900,000
Cricket Fields +1 field $350,000 per unlit field or
$500,000 per lit field $350,000 to $500,000
Outdoor Tennis Courts +17 courts $150,000 per unlit court or
$240,000 per lit court $2,550,000 to $4,080,000
Outdoor Pickleball
Courts +20 courts $100,000 per unlit court or
$150,000 per lit court
$$2,000,000 to
$3,000,000
Basketball Courts +10 courts $100,000 per unlit court $1,000,000
Outdoor Splash Pads +14 $500,000 $7,000,000
Cooling Stations +2 $350,000 $700,000
Small-Scale Skate
Zones +6 $100,000 $600,000
Leash-Free Dog Parks +1 $140,000 $140,000
Compact Leash-Free
Dog Parks +2 $100,000 $200,000
Community Gardens +1 $175,000 $175,000
Outdoor Fitness
Equipment +4 $200,000 per location $800,000
Playgrounds +30 $400,000 per location $12,000,000
Total $180,340,000 to
$183,995,000
Note: Projected 2036 facility needs are based on forecasted population growth, trends, community input, facility data, provis ion
targets, geographic distribution, and other factors and exclude replacement of existing facilities. Unit costs reflect 2024 values
and are based on a combination of sources including facility costs in Clarington and comparable municipalities. Indoor facility
costs include an additional 25% for project costs to account for site preparation, building contingency, and other soft costs such
as project management, and engineering and architectural fees. Outdoor facility costs include components, site preparation,
and surfacing. Unit costs per tennis and pickleball courts are presented, although it is a best practice to construct these
facilities in groups of two or more. Lit sports fields and courts should only be in Municipal Wide and Community Parks, where
appropriate separation distances can be achieved.
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It will also be important to consider the operating impacts of new or enhanced
facilities, programs, and services as there will be resource commitments required on an
annual basis (e.g., financial, staffing, materials, etc.). It is recommended that at the time
new community services or CLMA capital projects are considered, both capital and
operating implications are explored to provide Council with details on the full scope of
resource requirements.
Recommendations
101. Use the Financial Assessment Report prepared in support of this Master Plan to
inform the Municipality’s budget process, Development Charges Background
Studies, Community Benefits Charges Strategy, and related resources. Where
appropriate, alternative funding and cost-sharing approaches should be
considered including (but not limited to), fundraising, grants, private -public
partnerships, sponsorships, surcharges and user fees, capital reserve
contributions, leasing space from others, and other strategies to provide the best
value to residents.
102. Prior to facility development, or as part of a five-year review of this Master Plan,
conduct a review to reconfirm recommended capital funding requirements for
facilities and, at this time, assess associated operating impacts to inform the
decision-making process.
103. Conduct feasibility studies and business plans (with public input and partnership
considerations) prior to undertaking major capital projects to ensure that projects
are aligned with community needs and financial capabilities.
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7.4 Staffing Implications
In 2019, the Municipality of Clarington embarked on a comprehensive organizational
review of all departments in association with Grant Thornton. This review recommended
significant undertakings, including a range of structural changes to increase efficiencies
and reduce duplication at an estimated corporate savings of between $2.3 and $4.2M.
These changes for the most part are reported to have been achieved through
restructuring, productivity enhancements, collaboration and communications
improvements, performance management, workflow automation, and outsourcing.
A more recent corporate restructuring in July 2023 was completed internally, further
consolidating services under Deputy Chief Administrative Officers that have a broad but
connected range of services all reporting directly to the Chief Administrative Offi cer. This
strategic refinement has paved the way for enhanced coordination among departments
with common functions and customers—both internal and external.
Staffing Review
To understand staffing implications of the Master Plan, a staffing review was completed
to identify synergies, eliminate inner-departmental duplication, and recommend further
collaboration and efficiencies amongst Community Services, CLMA, and Parks
Operations. This review:
a) Assesses the current staffing and related pressures with respect to the
recommendations in the Parks, Recreation and Culture Master Plan,
b) Provides comment where applicable on where the current growth is impacting
staffing
c) Compares common municipal organizational design standards; and
d) Recommends any further initiatives to improve organizational effectiveness
The insights gained from this analysis guides staff efforts to strengthen attention to
public service priorities and build an even stronger public service for the future. The
review provides an order-of-magnitude staffing plan for each department, reflecting
current staffing pressures and future facility, parks and program needs identified in the
Master Plan.
Typically, there are three conditions which trigger a staffing review, and these include:
• A significant change in the environment;
• A change in strategy; and
• The current staffing no longer fits the intentions of the work outputs.
In this instance, a staffing review is required to address the impacts of the Parks,
Recreation, and Culture Master Plan recommendations and looks for greater synergies
between the departments and CLMA.
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Implementing a refined corporate structure approved in 2023 is well underway at the
time of writing, and the staff workshops that supported the development of this plan
shed some light on further implementation support. These supports are indicated as
refining common organizational design principles, succession planning, training, and
defining and strengthening the intersections between each department and division.
In the Municipality of Clarington, three departments and the Library Board share primary
responsibility for delivering parks, recreation, and cultural services. These departments
include Public Services, Planning and Infrastructure, Public Works (Parks Ope rations),
and Clarington Libraries, Museums and Archives (CLMA),
The CEO of the Clarington Public Library Museums and Archives reports directly to the
Clarington Public Library Board and oversees the management and coordination of the
Library System, Museums, and Public Archives. The CEO participates in the
municipality's management team meetings to maximize synergies and reduce
duplication between departments.
Staff Consultation
Two staff workshops were held with the Municipality and CLMA staff to capture their
valuable knowledge, insights, and experiences to be considered as part of the Parks,
Recreation and Culture Master Plan. Over 50 staff members participated in the
workshops attended by senior management and frontline positions, including directors,
managers, supervisors, assistants, coordinators, customer service representatives and
service associates, clerks, and more. Discussion topics were wide -ranging and key
themes relating to delivering services are highlighted as follows:
The Municipality is Growing and Diversifying – Clarington is a growing municipality.
By 2051, the Municipality is expected to experience substantial population increases in
its urban centres such as in designated Major Transit Station Areas (MTSAs). There is
also growth in the cultural diversity of C larington’s residents. These factors are
impacting how the Municipality’s facilities are used and the services that are in demand
or being requested.
Responding to Evolving Needs – Population growth is driving the need to provide
enhanced parks, recreation, and culture experiences that are expected in large
municipalities, particularly for new residents moving to Clarington from Greater Toronto
Area municipalities. It is recognized that there is a need to balance the provision of new
and existing services in a manner that reflects the needs of residents and is inclusive of
all age segments of the community. In addition to these requests, it was identifie d that
approved levels of service will set the stage for greater definition of operational and
staffing needs.
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Recovering from the COVID-19 Pandemic – In some areas, the Municipality has
experienced a greater demand for new or expanded facilities, programs, and services
because of the pandemic, which is also linked to the change in Clarington’s community
profile that has occurred during this period. Fo r example, there is more interest in trail
use and outdoor programming, demand for adult learn to swim programs and other
activities such as pickleball, family programming, cultural and STEM programming and
cricket, etc. There has also been a change in customer behaviour and increased use of
facilities by people seeking mental health support, general social assistance, and from
the unhoused population.
Organizational Effectiveness and Staffing – Staff indicated that there continue to be
small areas of duplication or opportunities for greater/continued coordination that need
to be addressed to operate more efficiently. The CLMA also identified the need for more
staffing to meet users' needs. The CLMA’s existing staffing complement is not currently
meeting industry standards set by the Federation of Ontario Public Libraries. It will be
particularly important to ensure that consideration be given to a staff team that is
qualified and competent to deliver and implement programs and services, reflecting the
changing diversity of the Municipality. The Municipality and CLMA team also identified
physical space for staff as a challenge for office space as the staff numbers increase.
Strategic Partnerships and Volunteers Increase Programs and Services —The
Municipality and CLMA collaborate with community organizations and volunteers to
provide parks, recreation, and cultural services. Collaborating with the private sector to
provide facilities and services in intensification areas will also be considered.
Volunteers—Exploring strategies to attract and retain volunteers will also be important,
as this has been an increasing challenge that many communities, including Clarington,
face.
Parks Operations
The key functions of the Parks Operations Unit in Public Works are to maintain parks,
trails, sports fields, and open spaces, increase and maintain the urban forest, and
attend to naturalized areas and horticultural displays. The portfolio is comprehensive
and requires significant operational planning, the procurement of time -saving equipment
and vehicles as well as continued innovation in the delivery of these services. One
element in the operations is the travel time incurred between parks spaces, the tim e it
takes to unload equipment and reload after the work is completed. A staff person
typically does not work for a full shift in one location.
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Parks Operations Staffing Impacts of the Master Plan Recommendations
Recommendations affecting staff effort from Parks Operations in the Master Plan centre
on increased trail connectivity, and an addition of 105.3 hectares of parkland and parks
amenities. The total hectarage will increase by approximately 48% over the current
inventory of 220 hectares.
A range of new outdoor recreation facility needs was identified, which would require
increased staffing effort for care and maintenance including, but not limited to , new
rectangular fields and ball diamonds or enhanced quality of existing fields/diamonds,
sport courts, splash pads, play equipment, outdoor fitness equipment, and more.
Expansion to the trail system and improved winter accessibility, as well as other par k
amenities throughout the parks system is also recommended.
The design of parks to include climate change mitigation measures, more shade and
shade structures, inclusion of environmental stewardship activities, and increased urban
forest canopy. Naturalized parkland requires care to ensure that there are no invasi ve
species and poisonous plants, the provision of safe spaces for residents, consistent
waste control, and care of shade structures, washrooms, pathways, etc.
The staff increases presume the same level of service and care; however, specialized
park spaces, once finalized, may require greater staff effort and collaboration from other
departments. Specific programming and events will result in more partnerships an d staff
coordination from CLMA and Community Services in these spaces as well as parks .
Table 31 provides a summary of recommendations associated with this Master Plan that
will impact Parks Operations staffing. For each associated recommendation the
implications of effort and staffing requirements have been identified as Full-Time (FT),
Part-Time (PT) and Seasonal.
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Table 31: Parks Operations Staffing Impacts of the Master Plan Recommendations
Staffing Requirement
Parks Recommendations Level of Service FT PT Seasonal
#6. Acquire 105.3 hectares of
parkland
Includes grass cut once per week from May1 to Oct 31,
spring and fall clean ups of leaves and debris; regular
pruning and maintenance of trees, new tree establishment
and tree health; maintenance of shrub and garden beds;
Garbage collection
2xLEO,
4xLabourer,
1xLeadHand;
0.5xArborist,
0.5xLEO;
1xLabourer
2
Labourer
(Garbage)
15xSummer
Student (13
Grass, 1
Forestry, 1
Garbage);
10xFall Temp
Labourers
(Grass);
1xSeasonal
Labourer
(Hort);
#9. Identify and acquire a
minimum of 30 hectares of
land to create a sports
complex
Includes grass cut once per week from May1 to Oct 31,
spring and fall clean ups of leaves and debris; regular
pruning and maintenance of trees, new tree establishment
and tree health
2xLEO
0.3xArborist;
3xSummer
Student
(Grass)
#15. e) Increase winter snow
clearing in strategic areas
Can not estimate without defined area; could absorb out of
additional staff (LEOs and Labourers) above; approx.
0.00005 per m2
#35/36. Provide 31.5 unlit
equivalent outdoor
rectangular fields
Assume these fields are within the parkland/sports
complex identified above. Incremental FTE for increased
frequency of grass cutting at twice per week.
0.3xLEO
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Parks Recommendations Level of Service FT PT Seasonal
#37. Construct up to 17 unlit
equivalent ball diamonds
Assume these fields are within the parkland/sports
complex identified above. Incremental FTE for increased
frequency of grass cutting at twice per week. Also,
maintenance of infields, warning tracks,
benches/bleachers, pitching mounds, home plates, etc.
0.2xLEO,
1xLabourer
2 Summer
Students
#38. Identify a suitable site for
a full-size cricket field
Assume this field is within the parkland/sports complex
identified above. Incremental FTE for increased
frequency of grass cutting at twice per week. Additional
maintenance of pitch/wickets.
0.25xLabourer
#39. Construct 17 new
outdoor tennis courts
Assume would be within the parkland/sports complex
identified above. Incremental FTE for installation of nets
in spring, removal of nets in fall; weekly inspections and
maintenance; repairs as required
0.75xLabourer
#41. Construct 20 dedicated
pickleball courts
Assume would be within the parkland/sports complex
identified above. Incremental FTE for installation of nets
in spring, removal of nets in fall; weekly inspections and
maintenance; repairs as required
1xLabourer
#42. Provide eight multi-use
courts for activities
Assume would be within the parkland/sports complex
identified above. Incremental FTE for weekly inspections
and maintenance; repairs as required
0.25xLabourer
#46. Construct 14 new splash
pads by 2036
Assume would be within the parkland/sports complex
identified above. Incremental FTE for weekly inspections,
cleaning and other maintenance as required; opening and
closing, repairs as needed
1xLabourer
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Parks Recommendations Level of Service FT PT Seasonal
#50. Construct six skate
zones
Weekly inspections and maintenance; repairs as required 0.25xLabourer
#51. Establish a new dog
park in Bowmanville
Assume this is within the parkland identified above. Only
incremental FTE for repairs is needed.
0.25xLabourer
#52. Construct two compact
leash-free zones.
Assume this is within the parkland identified above. Only
incremental FTE for repairs is needed.
0.25xLabourer
#54. Establish a community
garden in Courtice
Primarily administrative, and could be absorbed by current
staff – Community Garden is run by their own board
#57. Provide 30 new
playground sites by 2036
Assume this is within the parkland identified above.
Incremental FTE for inspection once per month,
maintenance of playground surfacing annually,
maintenance and repairs of equipment as needed
2xLEO 1xSummer
Student
Current Staff Shortages to
Meet Industry Standards
Current levels of service are being met within parks
operations. Some standard issues arise at the beginning
of the growing season as the grass grows at a quicker
pace than staff can cut it. This happens annually and
standard cutting cycles are attained by early summer.
Suggested Staff Efficiencies
to Reduce Duplication
There will be an efficiency that can be attained through the
sharing of staff with Public Works once the added
parkland has been developed and is ready to be
maintained.
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The following table summarizes the current Parks Operations staffing complement, and the additional staff needed over
time to implement the recommendations in the Master Plan. A full-time staffing complement impact will increase staffing
needs by 99 full, part-time and temporary labourers or by 74% over the course of implementing the Master Plan
recommendations within Parks Operations.
Table 32: Summary of Changes to Parks Operations Staff Complement
Existing Staff Complement Full-
Time
Part-
Time
Students/
Temporary
Labourers
Total
2024 20 4 13 +20 57
Full Implementation of Growth-related recommendations in the Master Plan 19 2 10 +11 42
Total 39 6 23 +31 99
Percentage Increase 95% 50% 77% 74%
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Community Services
The Community Services Department's mandate is to ensure that residents are active,
connected, and fully engaged in leisure activities of their choice. Efforts are made to
ensure that residents of all ages have multiple avenues of active, creative, STEM, and
general-interest activities. The Municipality of Clarington has a wide breadth of services
and will offer programs and services where no other community agencies and not-for-
profit groups can play this role. There is a blend of opportunities, and generally,
Community Services offers aquatic services and arena operations where there are no
Boards of Management or likely service providers. Programs are rounded out for each
age group, and partnerships exist for youth opportunities and older adult activities at a
minimum.
Increases to recreation service provision include continued recovery from the pandemic,
increased participation in programs and services due to the population increases, facility
recommendations, and improvements include the new South Bowmanville Recreation
Centre, which will include a new indoor artificial turf field, gymnasium, multi -purpose
space and other indoor amenities. The Master Plan also identified the need for two new
ice pads and an indoor aquatic centre. A look to partners is considered for programming
multi-use spaces in condominium spaces. Further administrative work will require staff
to allocate and book additional sports fields and support increased demand for
programs, camps, fitness spaces and special events, dedicated spaces for older ad ults
and youth, etc. Community development work will likely increase to support not for profit
community partners.
Community Services Staffing Impacts of the Master Plan Recommendations
The following table provides a summary of recommendations associated with this
Master Plan that will impact Community Services staffing. For each associated
recommendation the implications of effort and staffing requirements have been
identified as Full-Ti me (FT), Part-Time (PT) and Seasonal.
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Table 33: Community Services Staffing Impacts of the Master Plan Recommendations
Staffing Requirement
Facility Recommendations Level of Service FT PT Seasonal
#17. Develop two new ice
pads as an expansion to the
Courtice Arena
Hours of operation 6: 00 a.m. to
midnight, seven days per week, 12
months per year. Two operators and a
part-time person per shift.
3 Operators 3 Operators
10 Maintenance
1 Recreation Coordinator
(24 hrs)
10 Recreation Staff
(instructors/skate patrol)
5 Customer Service
Reps
#21. Explore the feasibility of
constructing an indoor aquatic
centre at the South
Bowmanville Recreation
Centre
Existing staff resources will work with
consultant to complete feasibility study
estimated at $25K
2 Operators
1 Aquatic
Coordinator
2 Deck Supervisors
PT Aquatic Instructors
(40)
PT maintenance 4
#23. Undertake
Enhancements to the indoor
aquatic centre at the Courtice
Community Complex
(teaching pool, warm water
therapy pool and enlarging the
changerooms, etc.)
Expansion of existing indoor aquatic
facility to the current standard of
programming Diane Hamre facility.
2 Deck Supervisors
2 Lifeguards
3 Instructors
2 Maintenance
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Facility Recommendations Level of Service FT PT Seasonal
#24. Include fitness studio
(multi-purpose) space with
appropriate amenities in new
and redeveloped community
centre.
Expansion of current service level
established at Diane Hamre facility –
expansion into recreational therapeutic
programming
1 fitness
coordinator
1 Fitness
Coordinator
10 Fitness Instructors
#25. Walking track as part of
the expansion at South
Courtice Arena (3 lanes,
rubberized or coated surface)
Expand the standard to this facility as
proposed in SBRC project, currently
underway. Incorporate track into major
facility amenities.
2 Program/
Fitness Instructors
#26. Artificial turf field
conversion to a double
gymnasium and multi-purpose
space at the Bowmanville
Indoor Soccer facility
Spaces will be available for private
rentals, and municipal
programs/activities. The standard will
replicate that of Diane Hamre facility.
This space will incorporate the existing
indoor rental schedule for soccer
program with Darlington Soccer Club
with expansion of rental and
programming opportunities.
Operating hours would be consistent
with any other multi use facility, similar
to DHRC.
1 Facility
Supervisor
1 Recreation
Coordinator
1 Lead Hand
4 Operators
1 Clerk II
3 Operators
5 Maintenance
20 Program staff
8 Customer Service
Reps
Camp Staff
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Facility Recommendations Level of Service FT PT Seasonal
#28. Provide multi-purpose
spaces in new or redeveloped
community centres
Expand current programming
standards – for every 3 expansions in
programmable space (in addition to
SBRC) would need to add another full-
time staff to program and part-time
staff to operate/deliver services
0.5 recreation
coordinator (for
every 3
programming
spaces
3 operators (every
10,000sq ft of
expansion)
Program staff
Maintenance staff
#29. Expand recreation and
leisure opportunities in rural
areas with community hall
partners
Goal is to expand minimum levels of
programming geographically.
.25 recreation
Coordinator
1 Recreation Supervisor
5 Program Instructors
#31. Direct youth and older
adult programming to multi-
use spaces
Potential for expanding current
partnership with John Howard Society
to offer some youth programs (non-
dedicated space). Additional municipal
youth and older programs/activities will
be offered.
0.25 recreation
coordinator
1 Recreation Supervisor
5 Recreation Instructors
#33. Work with Clarington
Squash Club to assist with
court bookings, increase
programming, attract new
players and monitor court use.
Some support is in place currently
from a liaison and booking
perspective. any enhanced support
would require additional support
1 PT Recreation
Coordinator (24 hrs)
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The following table summarizes the current staffing complement, and the additional staff needed over time to implement
the recommendations in the Master Plan. The staffing impact of the Master Plan will increase Community Services staffing
needs by 184 full, and part-time staff as well as volunteers or by 41% over the course of implementing the Master Plan
recommendations within Community Services.
Table 34: Summary of Changes to Community Services Staff Complement
Existing Staff Complement Full-Time Part-Time Volunteers Total
2024 68
351 (including 1
permanent part-time
position)
35 454
Full Implementation of Growth-related recommendations 23 141 20 184
Total 91 492 55 638
Percentage Increase 34% 40% 57% 41%
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Table 35: Summary of Arts and Culture Staff Increases
Staffing Requirement
Arts and Culture Recommendations Level of Service FT PT Seasonal
#63. Update Visual Arts Centre to
bolster programming
There is currently no one staff person directly and fully
assigned to the arts and culture portfolio. With the increase
in the population and citizen expectations, it is anticipated
1 4 -
#64. Expand general arts and cultural
programs firstly by engaging the arts
community to provide programs in
municipal spaces
that the Municipality of Clarington will need to gain the
leadership of a full-time Cultural Coordinator and 4 part-
time staff to develop and oversee expanded cultural
programming and community development efforts.
#65. Undertake a feasibility study to
confirm the need for an indoor
performing arts centre
#66. Enhance opportunities to provide
outdoor productions and
performances along the waterfront
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Clarington Libraries, Museums and Archives
The CLMA currently employs 45 Full Time Equivalent (FTE) staff, including two new
staff that were added in 2023, consisting of the CEO, directors, managers, librarians,
service associates, pages, clerks, and other staff. Based on a current population
estimate of 108,757 residents, the CLMA achie ving a ratio of 0.41 FTEs per 1,000
residents. The Ontario Public Library Planning Guidelines recommend a ratio of 0.6
FTEs per 1,000 residents, and based on this measure, CLMA does not meet this target.
As Clarington’s population increases, this deficit will continue to grow
CLMA is experiencing staffing pressures due to increased service demands in
programs, circulation of materials, and increasing demands for social advocacy for
underserved populations. There are currently 14 hours of bi -weekly shifts that cannot be
covered due to restraints, and therefore, professional staff (System Technician , etc.) are
covering the front desks, taking away from their own service deliverables. As a result of
pent-up demands, fewer tour requests are being fulfilled – groups are welcomed, but
the staff-guided tours and the instructional piece is unable to be fulfilled. Longer wait
times for staff assistance are being experienced. An increase in Member Service
Associates – front-line services is needed to serve the public more promptly and
adequately while allowing specialized staff to advance in their deliverables.
The Municipality’s population is projected to reach 162,640 residents at which point
CLMA will require a total of 98 FTE staff to meet the recommended target established in
the Ontario Public Library Planning Guidelines, which is more than double CLMA’s
existing staff complement.
CLMA Staffing Impacts of the Master Plan Space Recommendations
The Master Plan recommends additional space needs for the CMLA towards 2036. The
following table provides a summary of recommendations associated with this Master
Plan that will impact Clarington Library, Museums and Archives (CLMA) staffing. For
each associated recommendation the implications of effort and staffing requirements
have been identified as Full-Time (FT) and Part-Time.
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Table 36: CLMA Staffing Impacts of the Master Plan Recommendations
Staffing
Requirement
CLMA Recommendations Levels of Service FT PT
#67. Provide 48,880 square feet of
library space
a) Add approximately 20,000
square feet of library space in
Bowmanville (12,000 square
feet at the South Bowmanville
CC.), preferably in the north end
of Bowmanville and co-located
with a community facility.
b) Add 10,200 at the Courtice
Library Branch or a library
branch in Courtice
c) Add 2,100 square feet at the
Newcastle Library Branch
A new library branch in Bowmanville would require at minimum 10 FTEs to
operate full-service hours (~72 hours a week).
An addition to the Courtice Library would require at minimum 2 FTEs to
continue operating with full-service hours (~72 hours a week). A new library
branch in Courtice would require 7 FTEs.
An addition to the Newcastle Library would not require additional FTEs.
4
3
6
4
#69. Increase access to library
resources in hamlets and rural areas of
Clarington (bookmobiles, library
lockers, vending machines etc.)
To implement fulsome service to hamlets and rural areas of Clarington,
including bookmobiles, book lockers, and other community outreach
initiatives, CLMA would require a minimum of 3 FTEs.
2 2
#73. Bolster museum programming
and the use of archives by enhancing
the use of existing CLMA spaces.
To bolster Museum programming and services within existing spaces,
CLMA would require a minimum of 1.5 FTEs.
1 0.5
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CLMA Recommendations Levels of Service FT PT
#75. Prepare a Special Events
Strategy and articulate funding and
staffing requirements.
A designated Special Events Coordinator would be required. 1 -
Current Staff Shortages to Meet
Industry Standards
Current Staffing Levels as compared to the Ontario Library Planning
Guidelines
1 24
Suggested Staff Efficiencies to Reduce
Duplication
It is anticipated that a full-time Events Coordinator could be shared between
Community Services and the CLMA, this would require further study.
The staffing complement impact of the Master Plan will increase CLMA staffing needs of full and part-time staff by 23.5
positions or by 35% over the course of implementing the Master Plan recommendations.
Table 37: Summary of Changes to CLMA Staff Complement
Existing Staff Complement Full-Time Part-Time Total
2024 27 38, including 7 Occasional part-time 65
Full Implementation of Growth-related recommendations 11 12.5 23.5
Total 39 50.5 88.5
Percentage Increase 41% 32% 35%
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7.5 Building Internal Capacity to Implement the Master Plan
Building internal capacity prompts staff to focus on key activities that will allow them to
understand the services they provide in greater detail and strengthen the staff team to
be more efficient and effective. The development of the Parks, Recreation and Culture
Master Plan for the Municipality of Clarington provides an opportunity to review the
organization's effectiveness in meeting public needs, plan for future growth , and
enhance service delivery based on public input and other measures.
Set Levels of Service for Council Approval
Community Services and Public Works have a large number of services and sub-
services — for example, the aquatics service offers lessons, public swim opportunities,
lane swims, aquafit classes, and facility rentals. Each service type brings with it a
different process in providing the service. Identifying levels of service is important in an
expanding community as services grow, so will the demands for additional resources
both capital and operating. Clarifying what and how services are provided sets the sta ge
for the allocation of resources as the population expands creating the need for more
programs and services. The following process will assist staff in identifying the fulsome
range of services provided, the current process, potential efficiencies and prompt an
annual review for improvements.
a) Categorize and quantify all services and sub-services;
b) Identify the ideal conditions (e.g., turf cut a certain height and frequency);
c) State the process as to how the service is provided and identify more efficient
equipment and the use of technology to enhance service provision;
d) Gather public input on the current service level and test satisfaction levels;
e) Identify intersections with other departments and potential efficiencies; and
f) Review level of service annually to determine efficiencies, gaps, or pressures.
Costing of Services in Setting Fees
Clarington partially offsets the financial costs to provide services through several
revenue streams, most notably user fees, entrance fees, taxation and, to a lesser
extent, sponsorships, grants, and partnerships. In the case of Public Works/Parks and
Forestry and CLMA, identifying costs is a recommended exercise; however, they do not
generally levy fees to the extent that community services/recreation does. There are
non-financial and intangible benefits that offset fiscal expenditures by way of increased
physical and social health among residents, contributions to community vibrancy and
cohesion, etc. Therefore, the degree to which quantifiable costs are “recovered” is
dictated by the Municipality’s philosophy surrounding the “value” of the service that it
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provides to residents and the community. The first step in setting fees and cost recovery
levels is understanding the cost to provide the service. This is a first step and an
arduous task and will involve guidance and assistance from the Finance and
Technology Department (to set corporate guidelines) and allocate costs fairly. Costing
of services provides transparency in the setting of fees.
Once costs are known (e.g., to produce an hour of ice), the current cost recovery levels
can be ascertained by understanding the percentage of the costs that are recovered
through the current fee structures. A comparison to the market rate (surrounding
municipalities or service providers) is usually undertaken to determine if fees can be
modified. Setting of fees can be developed by determining which age groups or types of
programs should receive greater subsidies.
Performance Measures and Targets
Municipality of Clarington and CLMA staff collect data for analysis and prepare reports
as part of the budget and planning process to measure performance against the
previous year's attendance, participation, utilization levels/rates, etc. This is completed
to demonstrate that there has been movement in addressing key goals and initiatives
and to demonstrate a good return on the investment of tax dollars. Seasonal and annual
attendance and registration statistics are captured and shared with staff, to allow
improved planning for the next session and accommodate any pent-up demands. This
is meaningful data and allows staff to analyze trends and gaps in service and make
plans for improved performance.
Articulating specific targets and measures provides clarity and focus on key deliverables
for both staff and community partners. Setting targets provides clear expectations so
that everyone is working toward the same goals. This approach provides focus on t he
right things and creates greater accountability. This exercise to measure against targets
is to simplify expectations in a complex delivery system. Once these targets are agreed
to and operationalized, specific operational plans will enable staff to achieve them
(Table 38).
Performance measures and targets should be considered, and baseline data collected
in year one. A review of the information will ensure that appropriate targets are set
based on the results. Not all areas will start at the same point, and municipal -wide
targets will take some time to achieve consistently. Staff will want to make appropriate
and timely modifications and interventions to program, scheduling customer service,
facility cleanliness and community outreach to maximize their performance.
No one person is accountable for delivering a service, that responsibility is shared. A
sense of teamwork should be created to ensure that everyone has the tools to play their
part in service excellence. Measures and targets must reflect what is important to the
public and should identify operational priorities for staff undertaking.
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Table 38: Performance Measures and Targets to Consider
Measure What is Important Suggested Target &
Performance Measure
Inputs a) Budget
b) FTEs
c) Square feet of facility space
d) Investment level per capita
These are baseline inputs and
will be compared year to year.
Increasing outputs, efficiencies
and effectiveness with similar
resources becomes the focus of
staff.
Outputs a) Facility utilization against
capacity
b) Direct program utilization
against capacity
c) Drop-in and casual use
opportunities against capacity
d) Permit/rental/utilization
e) Volunteerism levels
a) 80-90% of prime-time hours
and 50-70% of non-prime
hours utilized
b) 80-90% of capacity based on
facility time available and
budget parameters
c) 50-75% of capacity
depending on the activity
d) 75% use of available hours
Efficiencies a) Efficiencies as a result of
better equipment, technology,
streamlined processes, grants,
partnerships, sponsorships
etc.
a) An indication of cost
avoidance, increased funding
through alternate sources,
reaching greater participation
through partnerships and unit
costs.
Effectiveness a) Facility cleanliness rating
b) Satisfaction levels with
programs and services
c) Satisfaction levels with
community development,
outreach, and sport
development services
d) Staff engagement levels
a) 80-90% rating
b) 80-90% rating
c) 80-90% rating
d) 50-75% rating
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Intersections within Municipal Departments
All respective departments (Parks Operations, Community Services , and the CLMA)
embrace a functional model that focuses on specific service types that align with similar
customer needs. This approach keeps the lines of responsibility and accountability
clear. There are some instances where there are similar customers or operational
activities where the departments intersect. Identifying and addressing these
intersections within each department is critical in identifying potential efficiencies,
reducing duplication, and sharing resources. These intersections are provided as
examples with the encouragement to review the most efficient, user -driven approach on
an annual basis:
• Public Works is responsible for the Park's Operations and there is a synergy with
other Public Works responsibilities in terms of seasonal efficiencies, staff
allocation to special events, and fleet/equipment procurement and maintenance.
• One of the intersections between Parks Operations and Community Services
centres on sports field maintenance and allocation of sport fields. Community
Services allocates sports fields and tournaments, while the Parks Operations
discuss capital plans and indicate which fields are resting or are under
reconstruction, thus reducing some seasonal availability. Both departments have
a relationship with community sport field groups and some groups indicated that
there is some confusion as to who to contact for th eir concerns and questions. In
consultation with user groups, the identification of the contact is appropriate.
• The Master Plan recommends increased STEAM (Science, Technology,
Environmental, Arts, Mathematics) programming which is a responsibility of both
CLMA and Community Services. These conversations occur annually as
programs are being developed.
• Community Services provides facility maintenance, preventative maintenance
and capital project oversight for the CLMA as it is more efficient to and often
within the same buildings as recreation.
• The CLMA meets with the Public Services Senior Management Team to address
common issues and initiatives. This is an excellent way of working collaboratively
and reducing duplication amongst two separate but aligned organizations.
• One efficiency worth noting is that Community Services provides Building and
Mechanical services (Plumbing and HVAC) to CLMA and invoices for actual costs
incurred in staffing and equipment. This approach provides excellent response
time for needed repairs and emergencies. Staff in Community Services know the
systems and can respond more efficiently. This relationship provides a consistent
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and known hourly cost with no profit margin which would be incurred with the
CLMA utilizing private providers.
• Other collaborations that could occur within Public Services is the development
of common training modules/webinars in EDI initiatives, WHMIS, First Aid, AED
use, and other common training requirements for staff.
• There is duplication within the CLMA and the Municipality in the provision of
support services with other Corporate Enterprises that should be explored further
(e.g., IT, Human Resources, Legal Counsel, etc.).
• Although the Legislation is quite specific about the CLMA CEO reporting directly
to the Library Board to protect Freedom of Speech, etc., possibly a dotted-line
reporting relationship by the CLMA CEO to the Deputy CAO of Public Services
with a Service Level Agreement in place could be explored to ensure that
efficiencies and the reduction of duplication are achieved across the system.
Common Municipal Organizational Design Principles
The organizational structures to support the delivery of parks, recreation , and culture
have been developed around common functions such as recreation, operations,
maintenance, program, and service type, etc. and community development. These
outward-facing service types are supported by administrative services such as
permitting of spaces and customer service representatives. Corporate support is
provided to all departments, such as financial guidance and controls, legislative
services, human resources and purchasing, etc.
A set of organizational design principles commonly utilized in municipal government
operations are offered for consideration as these principles could be used in future
organization structural evaluations. It is anticipated that Human Resources would refine
these as changes as levels of service change, technology provides some efficiencies,
equipment, functions increase , or streamlined processes affect organizational design.
Common organizational design principles allow all departments and divisions to be
structured in a fair and equitable manner and these principles can guide re -
organizational efforts. They are offered as follows:
• There should be no more than six layers of staff and volunteers between the
Chief Administrative Officer and the public;
• Departments and/or divisions are centred around common customers and/or
standard functions;
• Departments will align their work on the strategic goals of the community and
corporation;
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• There will be an equitable distribution of workload where possible in terms of
span of control (functions, staff, outputs etc.);
• Intersections with the work of other departments will be identified and the work
efforts required to support seamless service delivery;
• Each management position will have a range of four to six direct reports (unless
a strategic priority requires focus and the employment of a sole contributor); and
• One-on-one reporting relationships will be evaluated as to their efficiency.
The organizational review utilizing the organizational design principles as provided
offers the following observations (Table 39). Note that the organizational design
principles were not necessarily utilized in the recent reorganization and therefore
observations are offered comparing the suggested design standards to the newly
refined structures.
Table 39: Organizational Design Principles
Organizational
Design Principle
Observations
Organizational
Layers
The implementation of Deputy CAO positions added a layer to
the organization. The requirement of no more than six layers
of staffing levels between the CAO and the public is
consistently met in all departments other than recreation and
facility services, where the breadth of services requires a
large part-time contingent of customer service
representatives, program delivery, and facility services
personnel and volunteers.
Functional &
Customer Driven
Structural Design
Each department is consistently designed around standard
functions and common users of the respective service.
Alignment with
Common Strategic
Goals
Each department under study demonstrates alignment with
the Corporate Strategic Plan as reports are approved by
Council. Each policy or program initiative requires public input
to ensure alignment with resident priorities.
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Organizational
Design Principle
Observations
Equitable Workload
Distribution
A more thorough review of equitable workload will be
undertaken as part of the exercise to determine and receive
approval for the service levels. Each service would review the
frequency and standards required, staff effort, equipment and
use of technology, efficiencies, budget, and outputs.
Intersections Intersections have been identified in the respective units
under review, and inter-departmental relationships address
each in a timely manner. For example, staff meet to discuss
facility or field disruptions due to field resting or refurbishment
of facilities and sports fields. CLMA and Community Services
coordinate efforts around programming, maintenance, and
special events.
4-6 Direct Reports In all departments under study, there are 3 to 6 direct reports
at the director and manager levels. At the supervisory level, a
range exists of between 2 and 5 direct reports. At the
supervisory level, there is a requirement to develop discipline -
specific policies and SOPs as well as to be operational and
lead a discipline at the same time. In future organizational
reviews, this requirement could be looked at more
consistently (should these proposed organizational design
standards be approved).
Eliminate One on
One Reporting
Relationships
There are no apparent one-on-one reporting relationships
within the organizational structures provided.
The organizational structures should depict where there is a
direct reporting relationship (solid line) and an indirect
reporting relationship (dotted line), as the structures are all
shown with direct reporting relationships to the position above
the noted position (other than in the CLMA where indirect
reporting relationships are articulated). This way the
relationships are depicted as slightly misleading as not all
positions report directly to the manager or supervisor.
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Development of a Succession Plan
The Master Plan indicates a need to be proactive in order to respond to future staffing
needs. A succession plan would quantify potential upcoming vacancies within the
organization and begin to develop internal talent further to ensure that there is
readiness and continuity in service delivery.
Succession planning looks to the future in terms of staffing needs and prepares existing
staff to compete for positions that will become available in the future. Further, staff
increases will require attracting a large part-time and seasonal contingent. Some part-
time work can be learned on the job, however many in Community Services will require
specific training such as in the aquatics field. The development of a succession plan
involves a review of staffing needs due to growth, new facilities and parks, existing
retention rates per position type, retirements, and potential early retirements.
Succession planning undertakes identifying specific training and development needs
and is a critical undertaking to ensure the Parks Operations, Community Services, and
CLMA’s organization's long-term sustainability.
Development of a Professional Development and Training Plan
During the staff consultation program to support the development of the Master Plan,
staff identified the need for a coordinated approach to training and professional
development. There is an appreciation for ongoing training opportunities offered
corporately/departmentally and through professional organizations at seminars and
conferences. Staff would like to develop meaningful training opportunities based on the
Municipality of Clarington’s culture and priorities. The need for continued training in
standard subjects such as WHMIS, Occupational Health and Safety could be developed
through online applications as a continued efficiency. A coordinated approach could
provide some efficiencies for common subject areas and cross training purposes. These
efforts result in continued legislative and industry standards compliance, greater
engagement and development of staff and greater innovations.
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Recommendations
104. Articulate and gain Council approval for specific levels of service for each
discipline to identify public expectations and the resources and efficiencies
needed to achieve them.
105. Identify the current costs of providing programs and services, as well as the
recommended cost recovery levels in setting a fair Pricing Policy, where
applicable.
106. Identify service delivery targets in each discipline and report achievements
annually to the community for public information.
107. Discuss and address the intersections between each department referenced in
the Parks, Recreation and Culture Master Plan, including but not limited to:
a. The development of online training modules common to Parks Operations,
Community Services, and CLMA;
b. The development of Standardized Partnership Agreements;
c. Streamlining one point of contact for community sport field users; and
d. The viability development of a Service Level Agreement between the
Corporation and the CLMA to outline the provision of common services (IT,
Human Resources, Legal Counsel, etc.)
108. Refine and approve the draft Organizational Design Principles provided in the
Parks, Recreation, and Culture Master Plan so that they can used consistently in
future staffing opportunities throughout the Corporation.
109. Further rationalize required staffing levels based on anticipated participation
rates due to population growth, current participation rates, and the staffing
implications in the Parks, Recreation and Culture Master Plan.
110. Develop a Corporate Succession Plan to ensure organizational sustainability
and the development of a pool of staff with the skills and competencies to
compete for upcoming positions.
111. Develop a Training and Development Plan summarizing the skills and
competencies needed to provide quality services and leadership at all
organizational levels and providing consistent training and development
opportunities (possibly online).
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7.6 Implementation Strategy
An implementation summary is contained in this section. By approving this Master Plan,
the Municipality of Clarington and CLMA are not bound to implementing every
recommendation and providing the facilities in the order, amount, or timing indicated;
rather this Master Plan provides the Municipality and CLMA with guidance on
community priorities and sets a general course of action to meet needs as they are
presently defined.
For each recommendation, resource implications have been identified particularly if
there is a capital cost required for facility development (refer to Table 30 for facility
specific costs) or further study, if additional staffing will be required for operations,
management, service delivery (see Recommendation #77), or if staff time is required.
The timing of the recommendations proposed in this Master Plan recognizes the need
for phased implementation, partnerships, and/or outside funding sources as some
recommendations are based upon what is needed and not necessarily what may be
financially achievable at the present time. The timing of initiatives is organized into the
following categories:
• Short-term (2024 to 2028)
• Medium-Term (2029 to 2033)
• Long-Term (2034 to 2036)
The Master Plan will need to be reviewed regularly to identify areas where the
availability of resources may affect the timing of implementation. Analysis of
implementation options and capital/operating budget implications should be undertaken
prior to approving major projects, as well as various funding sources, and partnership
opportunities. As part of a five-year update to this Master Plan, reviewing the timing of
implementation should also be undertaken. The following is a summary of
recommendations in the order that they appeared in the Master Plan.
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Parks Plan Recommendations
Recommendation Timing
Resource
Implications
Short Medium Long
1. Guided by this Master Plan, incorporate a new park hierarchy as part of the
Municipality’s Official Plan Review to ensure that it reflects parks that exist or are
planned in Clarington, as well as to align with modern expectations and best
practices in different park types, particularly in emerging intensification areas.
The Municipality should review and reclassify its park supply to align with the
new hierarchy system.
Staff time
2. Use the recommended park facilities and amenities framework contained in this
Master Plan as the basis for developing a detailed design manual to establish
standards for facilities and amenities for each park type according to the
recommended park hierarchy. As a best practice, the development of indoor
community and recreation facilities on parkland should be minimized to ensure
that sufficient space is available to meet needs for outdoor recreation and
cultural facilities and amenities.
Staff time
3. As part of the Municipality’s Official Plan Review, the following actions are
recommended to be undertaken as it relates to Section 23.10 of the Official Plan
(Parkland Dedication):
a. Identify that non-profit housing development, inclusionary zoning affordable
units, and additional residential units (as defined in the Planning Act) are
exempt from parkland dedication and developments with affordable and
attainable residential units are subject to reduced parkland dedication
amounts as identified by the Planning Act.
b. Update the alternative rate in Section 23.10.3(a), (c) and (e) to one hectare of
parkland per 600 dwelling units.
c. For the alternative rate, reflect that the amount of parkland conveyed or
required as a payment-in-lieu of parkland shall not exceed 10% of land or
Staff time
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Resource
Implications
Short Medium Long
value of land where the land subject to the development is 5 hectares or less,
or 15% of land or value of land where the land subject to the development is
greater than 5 hectares.
d. Section 23.10.4 shall be updated to reflect that payment-in-lieu of parkland
dedication will be calculated at a rate of one hectare per 1,000 dwelling units .
e. Identify that the dedication of land that is suitable for the development of
parkland should be maximized to achieve the recommended parkland service
level and accommodate the outdoor recreation facility needs as identified by
this Master Plan.
f. Identify that parkland payment-in-lieu rates are frozen as of the date that a
zoning by-law or site plan application is filed. The freeze is effective for two
years after approval.
g. Identify that the Municipality spend or allocate at least 60% of money
collected from payment-in-lieu of parkland dedication annually (based on the
opening balance of the parkland reserve fund).
h. Develop policies guiding the acceptance of encumbered lands such as
privately owned public space (POPS) and strata parks based on the guidance
and best practices provided by this Master Plan, including Appendix A.
Appropriate legal agreements must be established to address park design
and construction standards, public access, maintenance, etc. These policies
should only be developed if changes to the Planning Act come into effect that
obligate municipalities to accept encumbered lands as part of parkland
dedication.
i. Establish location and development guidelines describing what constitutes
acceptable parkland dedication from developers. These guidelines should
consider restrictions for encumbered lands such as hazard lands, steep
slopes and unstable lands, environmentally protected lands, rights-of-ways
and easements, contaminated lands, etc.
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Resource
Implications
Short Medium Long
j. Monitor Provincial announcements regarding new or updated legislation
relevant to parkland and evaluate the impact on parkland dedication practices
in Clarington. Updates associated with the implementation of Bill 23 or to
understand regulations/criteria guiding parkland conveyance as it relates to
encumbered parkland (e.g., strata parks and POPS), and evaluate its impact
on the Municipality’s Official Plan Review and Parkland Dedication By-law.
4. Update the Municipality’s Parkland and Open Space Dedication By-law to
ensure that it aligns with the amended Planning Act. Refer to Recommendation
#3 for applicable changes as part of the update process.
Staff time
5. Through the Official Plan Review, update the Municipality’s parkland service
target to 2.0 hectares per 1,000 residents, including:
a. 1.1 hectares per 1,000 residents for Municipal Wide Parks and Community
Parks.
b. 0.75 hectares per 1,000 residents for Neighbourhood Parks.
c. 0.15 hectares per 1,000 residents of Parkettes, and Urban Squares and
Parks.
Staff time
6. Acquire 105.3 hectares of parkland to achieve the recommended parkland
service target including:
a. 52.6 hectares of Municipal Wide Parks and Community Parks
b. 48.7 hectares of Neighbourhood Parks
c. 4.0 hectares of Parkettes, and Urban Squares and Parks.
Staff time Best Practice
7. Maximize parkland dedication opportunities, particularly in Secondary Plan
Areas with an emphasis on acquiring Neighbourhood Parks of sufficient size ;
working with landowners to prepare a Master Parks Agreement is encouraged;
Staff time Best Practice
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Resource
Implications
Short Medium Long
efforts to acquire a Community Park in the Soper Hills Secondary Plan Area
continues to be supported.
8. Explore alternative acquisition strategies to acquire larger Municipal Wide Parks
or Community Parks to augment tools permitted by the Planning Act including,
but not limited to, land purchase/lease (e.g., land banking, surplus school sites,
etc.), land swaps/exchanges, partnerships, reallocation of surplus land, etc.
Accepting a combination of land and cash -in-lieu of parkland is also encouraged.
Staff time Best Practice
9. Initiate a site selection process to identify and purchase a minimum of 30
hectares of land to create a sports complex to assist the Municipality in
addressing longer-term sports field demand that cannot be accommodated in
existing and future parks. Site criteria should include, but not be limited to,
location and access, development potential and constraints, land compatibility,
expansion opportunities, and user group support and partnership potential.
Staff time
10. Prepare a Park Renewal Strategy to identify opportunities to: renew parks to
replace aging components (e.g., like for like), redevelop to replace and/or
repurpose amenities ensure they serve evolving community needs, and plan for
park enhancements to add new amenities. Candidate parks should consider the
age and condition of the park and components, changing demographics,
opportunities to minimize service duplication, proximity to intensification areas
serving MTSAs, opportunities to be repurposed under-utilized facilities to
address other in-demand outdoor recreation opportunities, and other variables.
Park renewal should be supported by community consultation.
Staff time
and/or cost for
further study
11. Work with the Clarington Diversity Advisory Committee, Clarington Accessibility
Advisory Committee, and other relevant groups to actively identify and
implement inclusive park design for all age groups and abilities, including
development of an Accessible Playground Distribution Strategy as outlined in
this Master Plan.
Staff time Best Practice
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Resource
Implications
Short Medium Long
12. Design new and redeveloped parks with a climate change lens with regard for
guiding frameworks such as the Clarington Corporate Climate Action Plan to
achieve the Municipality’s goal of reducing greenhouse gas emissions by 35%
by 2030 and net-zero emissions by 2050.
Staff time Best Practice
13. Develop and renew parks with a focus on safety, incorporating Crime Prevention
Through Environmental Design principles, enhancing naturalization efforts and
including comfort amenities like shade, seating, signage, and other features to
create inviting and welcoming spaces.
Staff time Best Practice
14. Collaborate with conservation authorities, community groups, and corporate
departments to develop and implement strategies that enhance and promote
environmental sustainability initiatives and naturalization in Clarington's parks
and open spaces.
Staff time Best Practice
15. Use the conceptual network in this Master Plan to guide the future development
of recreational trails in Clarington. Key strategies to strengthen the trail network
and to promote active movement within the Municipality include :
a. Work with community partners and landowners, agencies, and other levels of
government to improve connectivity within and between settlement areas,
including north-south connections between the Waterfront Trail, Greenbelt
Trail, Oak Ridges Moraine Trail, and Bowmanville Valley Trail to encourage
active transportation and expand the trail network. This should include
creating a “circle of green” trail around Bowmanville, developing solutions to
overcome barriers, including crossing transportation corridors, including
Highway 401 and Highway 418, as well as other roadways.
b. Establish active transportation routes within future residential areas,
particularly in Secondary Plan Areas with connections to the existing network .
Cost for trail
development
Additional staff
required
Best Practice
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Resource
Implications
Short Medium Long
c. Design new and redeveloped parks with designated circulation areas to guide
users through parks and public spaces and connect to on-site amenities
(e.g., playgrounds, sports fields, etc.).
d. Incorporate trail design features and comfort amenities in appropriate areas
to enhance comfort including, but not limited to, signage, seating, shade,
drinking fountains/bottle filling stations, bicycle parking, and accessibility
features.
e. Increase winter snow clearing in strategic areas to encourage year-round
physical activity. Appropriate staffing levels will be required to support this
initiative as well as training, such as being Smart About Salt Certified, as
directed by the Municipality’s Corporate Climate Action Plan . Evaluating the
feasibility of using salt alternatives is also recommended.
f. Have regard for the Municipality’s Active Transportation Master Plan and
Wayfinding System Strategy to ensure seamless connectivity between off-
road and on-road routes and bring greater awareness and promote the use of
Clarington’s trail system.
16. Update Clarington’s Waterfront Strategy to have regard for the input received
and the guidance put forward through this Master Plan , including preserving
environmentally sensitive areas such as the Samuel Wilmot Nature Area and
undertaking enhancements to encourage greater passive uses along the
waterfront, including economic development opportunities , comfort features, and
supporting amenities.
Staff time
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Facilities Plan Recommendations
Recommendation Timing
Resource
Implications Short Medium Long
17. Develop 2 new ice pads as an expansion to the Courtice Arena. Confirmation of
the timing and associated amenities should align with the five-year update to the
Master Plan and be based on user group participation, ice pad utilization, sport
trends, and population growth, including changes in socio -demographic
characteristics. Community user groups should be engaged to guide the design
process.
Cost for
development
Additional staff
required
18. Continue to engage independent Arena Boards in Newcastle and Orono to
maximize ice use to the benefit of Clarington arena organizations. As part of
these discussions, explore the possibility of aligning allocation practices of the
Arena Boards with the Municipality to ensure that ice time is permitted in a fair
and transparent manner.
Staff time Best Practice
19. Engage adjacent communities such as the City of Oshawa to negotiate access
to arena time for local organizations to alleviate short-term demand for additional
ice time.
Cost for
negotiated
access
Staff time
20. Undertake a life cycle and building condition audit of the Darlington Sports
Centre to determine its lifespan and investment requirements to guide decisions
to maintain the facility for ice or repurpose to other uses.
Cost for
further study
21. Explore the feasibility of constructing an indoor aquatic centre concurrently with
the first phase of the South Bowmanville Recreation Centre, which should be
designed to support both community programming and competitions (although
this should not delay the current process). Engage community user groups as
part of the design process.
Cost for
further study
and
development
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Resource
Implications Short Medium Long
Additional staff
required
22. Assess the future of the Alan Strike Aquatic Centre and Squash Centre, with
consideration given to reinvestment to extend the life of the facility, adaptive re -
use opportunities for community programs, or other uses. Decisions regarding
the future of the Alan Strike Aquatic and Squash Centre over the longer-term
could require an alternative site for another indoor aquatic centre (beyond the
time frame of this Master Plan).
Cost for
further study
23. Undertake a feasibility study to guide enhancements to the indoor aquatic centre
at the Courtice Community Complex to address a broader range of community
programming and uses, which may require expanding the facility to the west.
Enhancements include reconfiguring and redesigning the teaching pool to reflect
what is currently offered at the Diane Hamre Recreation Complex, constructing a
warm water therapy pool, and enlarging changerooms.
Cost for
further study
and
development
Additional staff
required
24. Include fitness studio space (or multi-purpose spaces) to support group fitness
activities designed with appropriate amenities in new and redeveloped
community centres.
Cost for
development
Additional staff
required
25. As part of a twin-pad arena expansion to the South Courtice Arena, assess the
feasibility of incorporating an indoor walking track as part of the design, which
should have a minimum of three lanes with a rubberized or coated surface.
Cost for
development
Additional staff
required
26. Move forward with converting the indoor artificial turf field at the Bowmanville
Indoor Soccer Facility with a double gymnasium.
Cost for
development
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Resource
Implications Short Medium Long
27. Continue to work with school boards to maintain and negotiate enhanced access
municipal and community access to school gymnasiums.
Cost for
negotiated
access
Staff time
Best Practice
28. Provide multi-purpose spaces in new or redeveloped community centres that are
flexibly designed in a variety of sizes and with supporting features to
accommodate community programs, rentals, and arts and cultural activities,
potential library use, as well as youth and older adult uses.
Cost for
development
Additional staff
required
Best Practice
29. Continue to work with rural community hall partners explore expanding
recreation and leisure opportunities for the rural community and to ensure long-
term operational success. Facility enhancements and upgrades should be
informed by building condition audits and based on maintaining a state of good
repair and facility usage trends.
Cost for facility
enhancements
Staff time
Best Practice
30. Monitor program space needs as population increases in intensification areas
with consideration given to partnership opportunities with the development
industry to incorporate multi-purpose programmable space within condominium
buildings where a gap in the provision of programmable space is identified,
which should have regard for public access, flexible, and sufficiently sized
spaces, parking accommodations, and supporting amenities such as storage
spaces and countertops.
Staff time Best Practice
31. Direct youth and older adult programming to multi-purpose spaces and
community halls to bolster facility utilization to complement existing youth and
older adult program and service providers , including at the future South
Bowmanville Recreation Centre, potentially through satellite outreach programs
in partnership with community organizations.
Additional staff
required Best Practice
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Implications Short Medium Long
32. Design indoor community facilities and outdoor parks with an age-friendly lens to
create welcoming, attractive, safe, and accessible spaces for all residents,
including youth and older adults. Consultation with youth and older adult
residents is encouraged to guide design processes.
Staff time Best Practice
33. Work with the Clarington Squash Club to maintain interest in the sport,
potentially increasing memberships, pay as you go users, and court bookings.
Municipal support may be required to assist with court bookings, promoting club
programming, and attracting new players. Monitoring court use will inform future
assessments associated with the Alan Strike Aquatic and Squash Centre.
Staff time
34. Proceed with the development of a new full size indoor artificial turf field as part
of the South Bowmanville Recreation Centre to replace the existing facility at the
Bowmanville Indoor Soccer Facility. While no additional facilities are
recommended during this planning period, the Municipality should monitor the
use of the new facility to inform future needs.
Cost for
development
Additional staff
required
35. A total of 31.5 unlit equivalent outdoor rectangular fields (equivalent to 21 lit
outdoor rectangular fields) are required by 2036. Emphasis should be placed on
short-term solutions to optimize the use of existing rectangular fields and
replacing the four Clarington Fields through the following strategy.
a. Undertake strategic improvements to outdoor rectangular fields to maximize
the use of existing outdoor rectangular fields, which may include, but not be
limited to, enhanced drainage and turf management practices, and adding
irrigation, as well as modernizing featu res such as paved pathways,
temporary or permanent washrooms, player and spectator seating, parking,
and more. Working with the Darlington Soccer Club and other field users to
identify and prioritize field improvements is recommended and to maximize
the use of the field supply.
Cost for
development
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Implications Short Medium Long
b. Identify suitable locations to install lighting at existing outdoor rectangular
fields to increase playing capacity. Candidate sites should have regard for
minimum setback distances to adjacent land uses and the use of LED l ighting
that produces sharp lighting cutoff.
Cost for
development
c. Provide a minimum of two lit outdoor rectangular fields with supporting
amenities at a future Community Park.
Staff time
d. Engage the Darlington Soccer Club to investigate opportunities to use the
Darlington Hydro Fields to accommodate other renters during available time
when the fields are not being used by the organization.
Staff time
36. As part of a five-year review of the Master Plan, re-evaluate outdoor rectangular
field needs with consideration given to field usage levels, participation rates, and
the success of short-term strategies to address field needs. The following
strategy is recommended to meet medium to long-term needs:
a. Direct new outdoor rectangular fields to future parks where opportunities
exist, such as at a future sports complex.
Cost for
development
b. Explore partnership opportunities to meet field needs such as working with
school boards to enhance the quality of school fields (including adding
lighting and other amenities), permit additional school fields, or partner with
other landowners such as OPG and the private sector to construct new fields.
Cost for
development
Staff time
Best
Practice
37. Construct up to 17 unlit equivalent ball diamonds (equivalent to 11 lit ball
diamonds) by 2036 in the following manner:
a. Investigate suitable locations to add lighting to existing ball diamonds to
increase playing capacity. Candidate sites should have regard for minimum
setback distances from adjacent land uses and the use LED lighting that
produces sharp lighting cutoff.
Cost for
development
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Implications Short Medium Long
b. Identify and prioritize enhancements to existing ball diamonds to improve
utilization including, but not limited to, addressing drainage and grading,
irrigating outfields, and adding, replacing, or modernizing amenities to
support ball diamond use such as paved pathways, lighting, fencing,
spectator seating, washrooms, parking, sunscreens, and lining . Consultation
with ball diamond users is recommended.
Cost for
development
c. Direct the majority of new ball diamonds to future Municipal Wide Parks (such
as at a sports complex) or Community Parks to create multi-diamond sites
with amenities to support use such as field lighting and parking ; new
Neighbourhood Parks of sufficient size acquired in Secondary Plan Areas
through parkland dedication, purchase of lands, and or a combination of
these, should also be pursued to support localized playing opportunities.
Cost for
development Best Practice
d. Pursue partnerships to construct new diamonds, or secure access to existing
diamonds, to meet needs, including school boards, OPG, private landowners,
etc.
Staff time Best Practice
38. Identify a suitable site for a full-size cricket field to be used as the primary
location for rentals. Once a suitable site has been established, monitor usage
(including other sports field demand) to determine the future of the cricket field at
Courtice Memorial Park.
Cost for
development
Staff time
39. Construct 17 new outdoor tennis courts by 2036 to address service gaps and
population growth, particularly in emerging Secondary Plan Areas where they
can feasibly be accommodated, in the following manner:
a. Construct 10 tennis courts at five parks in Bowmanville (+10). The
Municipality should engage the Bowmanville Tennis club to monitor
membership levels to determine if/when additional club-courts are required;
club-courts should be provided at a rate of one per 50 to 75 members.
Cost for
development +6 +2 +2
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Implications Short Medium Long
b. Construct four tennis courts at two parks in Courtice (+4). Cost for
development +2 +2
c. Construct two tennis courts at a park in Newcastle (+2). Cost for
development +2
d. Construct one tennis court in the rural area (+1). Cost for
development +1
40. Establish a plan to resurface aging tennis courts with acrylic coating. Staff time
41. Construct 20 dedicated pickleball courts by 2036 to address service gaps and
population growth, particularly in emerging Secondary Plan Areas where they
can feasibly be accommodated, in the following manner:
a. Construct 14 dedicated pickleball courts in Bowmanville, including six to eight
courts at a Municipal Wide or Community Park to create a pickleball complex
(potentially operated with a sports organization). Remaining courts should be
located at existing and future parks, potentially at parks serving secondary
plan areas (+14).
Cost for
development +10 +2 +2
b. Construct four dedicated pickleball courts in Courtice, potentially two courts
at a neighbourhood park in the north end and two courts at a neighbourhood
park in the south end (+4).
Cost for
development +2 +2
c. Construct one dedicated pickleball court at a neighborhood park in
Newcastle. A second court may be considered to support simultaneous play
(+1 to +2).
Cost for
development +1 to
+2
d. Construct one dedicated pickleball court at a park in the rural area. A second
court may be considered to support simultaneous play (+1 to +2).
Cost for
development
+1 to
+2
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Implications Short Medium Long
42. Provide eight multi-use courts for activities such as basketball and ball hockey in
the following manner, preferably at parks in emerging Secondary Plan Areas
where they can be feasibly accommodated:
a. Construct five multi-use courts in Bowmanville (+5). Cost for
development +1 +2 +2
b. Construct one multi-use court in Newcastle (+1). Cost for
development +1
c. Construct two multi-use courts in the rural area (+2). Cost for
development +2
43. Investigate opportunities to provide one multi-use court in the north end of
Courtice (north of Nash Road) to address a service gap and strengthen
geographic distribution.
Cost for
development
44. To accommodate two new ice pads at the South Courtice Arena, relocate the
existing multi-use court to another location within the site or to another park in
Courtice.
Cost for
development
112. To accommodate two new ice pads at the South Courtice Arena, relocate the
existing multi-use court to another location within the site or to another park in
Courtice.
45. At the time of basketball court replacement, investigate the feasibility of
enlarging half courts or undersized shooting pads to full -size multi-use courts.
Cost for
development Best Practice
46. Construct 14 new splash pads by 2036 in the following manner at parks in areas
serving households with children, including in emerging Secondary Plan Areas:
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Implications Short Medium Long
a. Construct six splash pads in Bowmanville, with a minimum of one serving the
central area of the community (+6).
Cost for
development +2 +2 +2
b. Construct four splash pads in Courtice , with a minimum of one serving the
west or north area of the community (+4).
Cost for
development +3 +1
c. Construct one splash pad in Newcastle (+1). Cost for
development +1
d. Explore the feasibility of constructing up to three small-scale splash pads in
the rural area (+3).
Cost for
development +1 +1 +1
47. To complement the splash pad supply, provide a minimum of one cooling station
at a park in or near Clarington’s two MTSAs, which could feature a limited
number of spray nozzles integrated into the hardscape or as posts, or
incorporated as part of a public art display, water fountains, boulders, or other
feature.
Cost for
development
48. Create a capital renewal plan for the outdoor pool and associated amenities at
Orono Park. A cost benefit analysis should be undertaken prior to making any
future capital decisions.
Cost for
development
49. Investigate, at the time of renewal, opportunities to enhance the skate park at
Garnet B. Rickard Recreation Complex to improve the user experience,
including, but not be limited to, improving visibility and supporting amenities.
Cost for
development
50. Construct six skate zones with introductory-level features at existing or future
parks, potentially co-located with basketball courts, in the following manner:
a. Construct three skate zones in Bowmanville, with some potentially at future
Secondary Plan Areas (+3).
Cost for
development +1 +1 +1
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Implications Short Medium Long
b. Construct two skate zones in Courtice, with one serving the north end and
one serving the south end (+2).
Cost for
development +1 +1
c. Construct one skate zone on the east side of Newcastle (+1). Cost for
development +1
51. Continue with establishing a new dog park in north Bowmanville with
consideration given to the site criteria identified in this Master Plan, including
property ownership, minimum size, public access, site condition, appropriate
setbacks, and parking. The design should be similar to what is available at
Clarington’s other locations, including a fenced enclosure with separate areas for
large and small dogs and supporting amenities such as shade, lighting and
seating.
Cost for
development
Staff time
52. Construct two compact leash-free dog parks in the Courtice and Bowmanville
MTSAs. The Municipality is also encouraged to work with the development
sector to create pet-friendly amenity spaces within all future developments.
Cost for
development
53. Identify a permanent site to relocate the Bowmanville Allotment Gardens. Site
criteria for selecting a community garden location should include (but not be
limited to), soil quality, grade, sun exposure, drainage, access to amenities, free
of hazards, and proximity to medium and high-density residential areas. Inclusive
design should also be considered including pathways and raised garden beds.
Cost for
development
Staff time
54. Establish a community garden in Courtice , which should be contingent on
working with a community partner to oversee daily operations. Site criteria for
selecting a community garden location should include (but not be limited to), soil
quality, grade, sun exposure, drainage, access to amenities, free of hazards, a nd
proximity to medium and high-density residential areas. Inclusive design should
also be considered, including pathways and raised garden beds.
Cost for
development
Staff time
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Implications Short Medium Long
55. Work with others to create and/or encourage the use of existing non-public
community gardens (e.g., churches) and with the development sector to create
private amenity space, including rooftop gardens in Clarington’s MTSAs.
Staff time
56. Install outdoor fitness equipment at four parks to strengthen geographic
distribution. New installations should be at parks in high traffic areas such as
along the waterfront trail in Newcastle and Bowmanville (to be reconfirmed
through the Waterfront Strategy), Municipal Wide or Community Parks, or in gap
areas including at two parks in Courtice’s Secondary Plan Areas. Long-term
opportunities to provide outdoor fitness equipment in MTSAs should also be
explored.
Cost for
development
57. Provide playgrounds within 800-metres of residential areas without crossing
major barriers such as arterial roads, railways, and waterbodies. New and
redeveloped playgrounds should feature high quality design with accessible
features. An emphasis should be placed on locating new playgrounds in future
parks serving Secondary Plan Areas, which could result in approximately 30 new
playground sites by 2036.
Cost for
development
Staff time
Best Practice
58. Develop an Accessible Playground Distribution Strategy to identify geographic
locations where enhanced and focused accessibility standards can be
implemented to the highest level of service.
Cost for
further study
and
development
59. Evaluate opportunities to construct natural playgrounds in strategic locations
such as at Municipal Wide and Community Parks, along the waterfront, and
parks serving MTSAs. Incorporating natural playgrounds in strategic open
greenspaces and natural areas may also be considered to complement the
surrounding area.
Cost for
development Best Practice
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Resource
Implications Short Medium Long
60. Promote the use of the existing outdoor lacrosse box to increase utilization while
maximizing the space for a variety of activities such as pickleball, ball hockey,
etc.
Staff time Best Practice
61. Undertake a cultural mapping exercise to establish a full understanding of
cultural resources that are available from the Municipality, CLMA, community
providers, private businesses, etc. as a tool for bringing awareness and
promoting what’s available in Clarington.
Staff time
62. Undertake a building condition assessment of the Camp 30 Cafeteria Building to
understand the requirements to ensure that the structure is stable to allow for an
evaluation of long-term opportunities and potentially for the Jury Lands
Foundation to fundraise.
Cost for
further study
113. Undertake a building condition assessment of the Camp 30 Cafeteria Building
to understand the requirements to ensure that the structure is stable to allow
for an evaluation of long-term opportunities and potentially for the Jury Lands
Foundation to fundraise.
63. Undertake a feasibility study to update the Visual Arts Centre, including
enhancing accessibility and modernizing the building to bolster programming
opportunities and achieve long-term success.
Cost for
further study
64. Continue to deliver and expand general arts and cultural programs within
existing and future indoor and outdoor spaces and ensure that they are designed
to accommodate such uses with consideration given to supporting amenities and
features. Engaging the arts and cultural community to provide programming
within municipal spaces is encouraged .
Staff time Best Practice
65. Undertake a feasibility study to confirm the need for an indoor performing arts
venue to consider space considerations (e.g., traditional main hall, community
Cost for
further study
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Implications Short Medium Long
space, amenities, etc.), evaluate potential locations, partners, design, financial
analysis, and consider public and community organization input.
66. Enhance opportunities to provide outdoor productions and performances such as
along the waterfront, Bowmanville Park on the former Zoo Lands, or other
locations as they become available.
Staff time Best Practice
67. Undertake feasibility studies to implement the recommended library facility
strategy outlined in this Master Plan.
Cost for
further studies
a. Add approximately 20,000 square feet of library space in Bowmanville. A
portion of library space needs should be met through a future expansion of
the South Bowmanville Recreation Centre. A facility fit exercise should be
undertaken to confirm the square footage of library space that can be
accommodated (preferably in the 12,000 square foot range). The remaining
balance should be provided at another location, preferably in the north end of
Bowmanville and co-located with a community facility.
b. Expand the Courtice Library Branch to add approximately 10,200 square feet
of space, potentially by extending the existing building footprint to the west,
which could be undertaken in conjunction with expanding the aquatic facility,
as recommended in this Master Plan. Should it be determined that this
location cannot be expanded, undertake a feasibility study to determine
alternatives to providing library branch space in Courtice.
c. Add approximately 2,100 square feet to the west, south or east side of the
Newcastle Library Branch.
68. As part of library space development and redevelopment, consider leading
space and design considerations to provide accessible, fresh, and modern
spaces that are relevant and responsive to all users, and are inclusive and
flexible to support evolving needs, services, and programming.
Staff time Best Practice
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Implications Short Medium Long
69. Increase access to library resources in smaller hamlets and the rural areas of
Clarington through alternative service delivery models by providing a bookmobile
service for rural residents and installing two library lockers for pick-up and drop-
offs. Library book vending machines should also be considered.
Costs to
establish
library
bookmobile
and two library
lockers
70. Monitor the effect on space utilization resulting from the implementation of the
Use of Space Policy and, if necessary, undertake policy revisions. Staff time
71. Explore alternative historical and/or cultural uses for the Sarah Jane Williams
Heritage Centre following completion of renovations to the Bowmanville Branch
Library, which will absorb museum artifacts and exhibits, and archives .
Staff time
72. Proceed with co-locating Clarington’s heritage buildings in Bowmanville to create
a centralized hub, in alignment with CLMA’s Strategic Plan .
Cost for
development
73. Create a plan to bolster museum programming and use of archives with a focus
on maximize the use of enhancing CLMA spaces to celebrate and better connect
residents to Clarington’s past.
Staff time
Culture Plan Recommendations
Recommendation Timing
Resource
Implications Short Medium Long
74. Create a Public Art Policy to provide guidance on evaluating and approving
public art installations and create a Public Art Reserve Fund to assist with Staff time
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Resource
Implications Short Medium Long
acquisition, development, installation, and maintenance; funding which could be
made through gifts, bequests, fundraising, levy, or other funding source.
75. Prepare a Special Events and Festivals Strategy that defines the roles and
responsibilities of the Municipality, community organizers, and the CLMA in
delivering and facilitating special events. The Strategy should articulate funding
and staffing requirements, promotional and awareness strategies targeted to
residents and tourists, strategies to address relevant actions of the Municipality’s
Inclusion, Diversity, Equity and Anti -Racism (IDEA) Strategy, and identify how
existing and future physical infrastructure can be incorporated as part of parks
and facility designs to deliver quality experiences.
Costs for
further study
76. Regularly engage key groups such as the Indigenous community and Aboriginal
Sports Council to identify ways to advance reconciliation through parks,
recreation, culture, and library services, as well as to inform the Municipality’s
Engagement and Relationship Building Strategy, actions articulated in
Clarington’s IDEA Strategy, and CLMA’s Repatriation and Decolonization
Strategy; there may be synergies in working collaboratively to develop strategies
and programs aimed at engaging Indigenous Peoples.
Costs for
further study
Staff time
Delivering Services Plan
Recommendation Timing
Resource
Implications Short Medium Long
77. Provide Municipal and CLMA staff with appropriate supports to deliver
exceptional services, which may include, but not be limited to, technology and
equipment, professional development and training, and other supports to
function as a high performing organization . Appropriate staffing levels must also
be considered to implement the recommendations of this Master Plan and
Additional
staff required Best Practice
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Resource
Implications Short Medium Long
should be guided by the organizational and staffing review provided under a
separate cover.
78. Collectively, the Municipality and CLMA should engage with community partners
to expand STEM program opportunities, outdoor programming, and creative
programming for all age groups to address current gaps and plan for meeting
future needs. Clarington’s Community Funding Program should continue to
recognize the value community partners provide in providing community-based
programs.
Additional
staff required
79. Expand municipal data collection to determine the penetration and retention
rates of the various age cohorts in recreation, culture, library, and sport activities
including programs offered in all municipal, school and library facilities
(registered and drop-in opportunities).
Staff time
80. The Municipality and CLMA should continue to offer and expand its range of in-
person and virtual programs to reach a wider audience, which may be done in
partnership with community partners and other program providers to share
resources and space.
Additional
staff required
81. Expand the CLMA’s StoryWalk program within Clarington’s parks system,
particularly along trails and pathways. Staff time
82. Undertake an update to the Older Adult Strategy by engaging older adults and all
related partners to ensure services are inclusive of an aging and increasingly
diverse older adult population.
Costs for
further study
83. Regularly review, identify, and assess partnerships or collaborations as
programs and services are planned to share resources, deliver joint-programs
and services, cross program, and minimize service duplication with the view of
improving efficiencies.
Staff time
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Resource
Implications Short Medium Long
84. Work with community stakeholder groups and partners to enhance volunteer
recruitment and retention strategies. Staff time Best Practice
85. Audit participation among females and those who identify as females to identify
strategies to increase participation, in partnership with Canadian Women in
Sport Association.
Staff time
86. Work with secondary schools to offer leadership courses for a credit toward a
high school diploma and look to subsidize leadership courses (including aquatic
leadership) until adequate staff numbers are achieved.
Staff time
87. Work with community partners to promote Canada’s Movement Guidelines for all
age groups. Staff time Best Practice
88. Create a technology strategy for CLMA, potentially in partnership with the
Municipality, to guide infrastructure investment and modernization of the CLMA,
including in-branch hardware and software, makerspaces, and other technology-
related space requirements, as well as equipment for the Library of Things.
Exploring the role of artificial intelligence in the library system and in the
Municipality should also be an on-going initiative.
Staff time
and/or costs
for further
study
89. Continue to complete Barrier Removal Accessibility Audits of all Municipal
buildings and make strategic investments, through the capital budget, to improve
access.
Costs for
accessibility
retrofits
Staff time
Best Practice
90. Develop a resource to assist the Community Services Division and CLMA in
identifying and engaging underrepresented populations to increase participation
and ensure that opportunities are inclusive of all residents . Having regard for
relevant actions contained in the Municipality’s Inclusion, Diversity, Equity and
Anti-Racism (IDEA) Strategy is recommended.
Staff time
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Resource
Implications Short Medium Long
91. Regularly review CLMA collections, resources, and services to ensure that they
reflect the needs and interests of a diversifying community. Staff time Best Practice
92. Increase the allowance under the Access Policy for residents experiencing low
income as fees for services rise to ensure that the number of opportunities
remains similar on an annual basis. The program should be reviewed regularly to
ensure the funding provided and eligibility requirements continue to achieve the
objectives of the program.
Staff time
93. Create a sponsorship program to offer free Municipal programming for residents. Staff time
94. Ensure all staff and volunteers are trained to ensure that Municipality and CLMA
facilities are safe spaces for all through Safe Spaces Canada. Staff time
95. Continue to work with community partners to provide social services and
resources for at risk and marginalized populations, while balancing the need to
provide safe and welcoming spaces for all.
Staff time Best Practice
96. Continue to promote and raise awareness about the programs and services
provided by the Municipality’s Community Services Division and CLMA using a
range of print and digital tactics. Opportunities for cross promotion and
collaboration between the Municipality and CLMA is encouraged.
Staff time
Best Practice
Implementation Strategy
Recommendation Timing
Resource
Implications Short Medium Long
97. Regularly monitor implementation of the Master Plan, including tracking
population growth and trends, development of intensification areas, monitoring Staff time Best Practice
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Resource
Implications Short Medium Long
facility use and program participation, group registration, and regular dialogue
with the community.
98. Prepare annual reports to recognize achievements and work plans to identify
recommendations to be implemented over the coming year. Staff time
99. Undertake a five-year update to the Master Plan (2029). Timing may be adjusted
depending on the pace of implementation or changes to the community.
Costs for
further study
100. Partnership opportunities with community organizations, private sector,
school boards, community groups, and others should be explored as part of
implementing the Master Plan, taking into consideration the benefits and risks of
the partnership, which may be supported by feasibility studies and the
development of standardized partnership agreements.
Staff time Best Practice
101. Use the Financial Assessment Report prepared in support of this Master Plan
to inform the Municipality’s budget process, Development Charges Background
Studies, Community Benefits Charges Strategy, and related resources. Where
appropriate, alternative funding and cost-sharing approaches should be
considered including (but not limited to), fundraising, grants, private -public
partnerships, sponsorships, surcharges and user fees, capital reserve
contributions, leasing space from others, and other strategies to provide the best
value to residents.
Staff time Best Practice
102. Prior to facility development, or as part of a five-year review of this Master
Plan, conduct a review to reconfirm recommended capital funding requirements
for facilities and, at this time, assess associated operating impacts to inform the
decision-making process.
Staff time Best Practice
103. Conduct feasibility studies and business plans (with public input and
partnership considerations) prior to undertaking major capital projects to ensure
that projects are aligned with community needs and financial capabilities.
Costs for
further study Best Practice
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Resource
Implications Short Medium Long
104. Articulate and gain Council approval for specific levels of service for each
discipline to identify public expectations and the resources and efficiencies
needed to achieve them.
Staff time Best Practice
105. Identify the current costs of providing programs and services, as well as the
recommended cost recovery levels in setting a fair Pricing Policy , where
applicable.
Staff time
106. Identify service delivery targets in each discipline and report achievements
annually to the community for public information. Staff time
107. Discuss and address the intersections between each department referenced
in the Parks, Recreation and Culture Master Plan, including but not limited to: Staff time Best Practice
a. The development of online training modules common to Parks Operations,
Community Services, and CLMA;
b. The development of Standardized Partnership Agreements ;
c. Streamlining one point of contact for community sport field users; and
d. The viability development of a Service Level Agreement between the
Corporation and the CLMA to outline the provision of common services (IT,
Human Resources, Legal Counsel, etc.)
108. Refine and approve the draft Organizational Design Principles provided in the
Parks, Recreation, and Culture Master Plan so that they can used consistently in
future staffing opportunities throughout the Corporation.
Staff time
109. Further rationalize required staffing levels based on anticipated participation
rates due to population growth, current participation rates, and the staffing
implications in the Parks, Recreation and Culture Master Plan.
Staff time
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Implications Short Medium Long
110. Develop a Corporate Succession Plan to ensure organizational sustainability
and the development of a pool of staff with the skills and competencies to
compete for upcoming positions.
Staff time
111. Develop a Training and Development Plan summarizing the skills and
competencies needed to provide quality services and leadership at all
organizational levels and providing consistent training and development
opportunities (possibly online).
Staff time
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Appendix A: A Framework for Accepting
Encumbered Lands
With park needs generated by population growth within intensification areas, Clarington
will require a multi-faceted strategy for providing parks given the current legislative
environment. As previously identified, the amended Planning Act allows municipal ities to
accept privately-owned public spaces (POPS) and stratified parks (or strata parks) to
supplement traditional dedication. Municipalities such as the City of Vaughan have
introduced Official Plan policies guiding POPS and strata parks and can be used by
Clarington to develop its own framework for accepting encumbered lands .
In Vaughan’s Draft 1 Comprehensive Official Plan Amendment (June 2024), a policy
framework was introduced to guide the provision of POPS, which identifies that they
may be accepted at full credit towards satisfying parkland dedication requirements. The
following is a policy summary established by Vaughan for accepting POPS:
• They will be designed, developed, and maintained to City standards and design
guidelines with respect to engineering and construction best practices; use the
highest-quality materials; and be programmed for wide range of users and
abilities.
• They will be located in a prominent public facing location, be open and
accessible to the public at all times (including through change of land ownership
or use) and provide adequate signage indicating as such.
• They fulfill a required open space need identified for the development or
surrounding community.
• They will conform to the criteria established for an equivalent-sized City-owned
park.
Vaughan’s Draft 1 Comprehensive Official Plan Amendment also provides policies for
stratified parks (or strata parks) – which are public parks developed above privately-
owned infrastructure. The following is a policy summary established by Vaughan for
accepting strata parks:
• The land will be suitable for park construction, free of site constraints with
adequate infrastructure servicing.
• Underground strata element should encumber up to 60% of the strata park area
to allow for long-term growth of canopy trees.
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• The easements or other agreements entered into between the City and owner of
the subsurface element ensure the following:
o Land is permit-ready for active and/or passive park programming;
o Land is designed and developable to City standards;
o Does not prohibit or restrict public programming;
o Will be open and accessible to the public at all times; and
o Any required repair or renovation to the underlying use that impacts the
overlying park shall be undertaken by the underlying owner and completed
and returned to the original park condition.
Municipality of Clarington Parks, Recreation and Culture Master Plan (Draft)
240
Appendix B: Parkland Dedication Scenarios
Under the Planning Act
Parkland Dedication Scenarios under the Planning Act, 5-hectare development site
Units per
Hectare
Total Units
(5-hectare
site)
Estimated
Persons
per Unit
Total
Persons
Dedication
Rate Applied
Parkland
Dedication or
Cash-in-Lieu
Hectares
per 1,000
residents
15 75 3.4 255 Standard
Rate
0.25 ha (land or
CIL)
0.98
ha/1000
30 150 3.2 480
(5% of site) 0.25 ha (land or
CIL)
0.52
ha/1000
50 250 3.0 750
Alternative
0.42 ha (land)
or
0.25 ha (CIL)
0.56
ha/1000
100 500 2.2 1,100
Rate 0.5 ha (land –
capped) or 0.5
ha (CIL)
0.45
ha/1000
150 750 2.0 1,500
(1ha:600
units or
1ha:1000
0.5 ha (land –
capped) or 0.5
ha (CIL)
0.33
ha/1000
250 1,250 1.8 2,250
units CIL) 0.5 ha (land –
capped) or 0.5
ha (CIL)
0.22
ha/1000
Note: Parkland dedication is capped at 10% of the land or value of the land for development or redevelopment
sites that are five hectares or less.
Municipality of Clarington Parks, Recreation and Culture Master Plan (Draft)
241
Parkland Dedication Scenarios under the Planning Act, 10-hectare development site
Units per
Hectare
Total Units
(10-hectare
site)
Estimated
Persons
per Unit
Total
Persons
Dedication
Rate
Applied
Parkland
Dedication or
Cash-in-Lieu
Hectares
per 1,000
residents
15 150 3.4 510 Standard
Rate
0.5 ha (land or
CIL)
0.98
ha/1000
30 300 3.2 960
(5% of site) 0.5 ha (land or
CIL)
0.52
ha/1000
50 500 3.0 1,500
Alternative
0.83 ha (land) or
0.5 ha (CIL)
0.56
ha/1000
100 1,000 2.2 2,200
Rate 1.5 ha (land –
capped) or 1.0
ha (CIL)
0.68
ha/1000
150 1,500 2.0 3,000 (1ha:600
units or
1ha:1000
1.5 ha (land –
capped) or 1.5
ha (CIL)
0.50
ha/1000
250 2.500 1.8 4,500
units CIL) 1.5 ha (land –
capped) or 1.5
ha (CIL)
0.33
ha/1000
Note: Parkland dedication is capped at 15% of the land or value of the land for development or redevelopment
sites that are greater than five hectares.
Municipality of Clarington Parks, Recreation and Culture Master Plan (Draft)
242
Appendix C: Facility Service Level
Benchmarking
A facility service level comparison was undertaken with surrounding municipalities and
those that are similar in population size and demographic make -up including Ajax,
Kitchener, Markham, Milton, Oakville, Pickering, and Whitby. This comparison reflects
municipal supplies only. It is important to recognize that service levels may vary in other
municipalities as their approach to facility provision may differ compared to Clarington.
Arenas
Municipality 2021 Population Supply Service Level
Ajax 126,666 8 1 : 15,833
Kitchener 256,885 11 1 : 23,353
Markham 338,500 10 1 : 33,850
Milton 132,979 6 1 : 22,163
Mississauga 717,691 24 1 : 29,904
Oakville 213,759 13 1 : 16,443
Oshawa 175,400 10 1 : 17,540
Pickering 100,000 5 1 : 20,000
Richmond Hill 202,000 7 1 : 28,857
Vaughan 323,100 8 1 : 40,388
Whitby 138,501 11 1 : 12,591
Average 247,771 10 1 : 24,119
Clarington (2024) 108,757 7 1 : 15,537
Municipality of Clarington Parks, Recreation and Culture Master Plan (Draft)
243
Outdoor Skating Rinks
Municipality 2021 Population Supply Service Level
Ajax 126,666 1 1 : 126,666
Kitchener 256,885 0 n/a
Markham 338,500 1 1 : 338,500
Milton 132,979 2 1 : 66,490
Mississauga 717,691 2 1 : 358,846
Oakville 213,759 1 1 : 213,759
Oshawa 175,400 0 n/a
Pickering 100,000 0 n/a
Richmond Hill 202,000 3 1 : 67,333
Vaughan 323,100 5 1 : 64,620
Whitby 138,501 0 n/a
Average 247,771 1 1 : 181,699
Clarington (2024) 108,757 1* 1 : 108,757
*Supply includes one under construction in Courtice and excludes two outdoor skating rinks that are
planned for Newcastle and Bowmanville (currently being designed).
Indoor Aquatics Centres
Municipality 2021 Population Supply Service Level
Ajax 126,666 3 1 : 42,222
Kitchener 256,885 5 1 : 51,377
Markham 338,500 7 1 : 48,357
Milton 132,979 3 1 : 44,326
Mississauga 717,691 12 1 : 59,808
Oakville 213,759 5 1 : 42,752
Oshawa 175,400 4 1 : 43,850
Pickering 100,000 2 1 : 50,000
Richmond Hill 202,000 6 1 : 33,667
Vaughan 323,100 9 1 : 35,900
Whitby 138,501 3 1 : 46,167
Average 247,771 5 1 : 46,195
Clarington (2024) 108,757 3 1 : 36,252
Municipality of Clarington Parks, Recreation and Culture Master Plan (Draft)
244
Fitness Spaces and Indoor Walking Tracks
Municipality 2021 Population Supply Service Level
Ajax 126,666 2 1 : 63,333
Kitchener 256,885 10 1 : 25,689
Markham 338,500 5 1 : 67,700
Milton 132,979 4 1 : 33,245
Mississauga 717,691 14 1 : 51,264
Oakville 213,759 6 1 : 35,627
Oshawa 175,400 3 1 : 58,467
Pickering 100,000 1 1 : 100,000
Richmond Hill 202,000 2 1 : 101,000
Vaughan 323,100 6 1 : 53,850
Whitby 138,501 1 1 : 138,501
Average 247,771 5 1 : 50,472
Clarington (2024) 108,757 1 1 : 108,757
Outdoor Fitness Equipment
Municipality 2021 Population Supply Service Level
Ajax 126,666 8 1 : 15,833
Kitchener 256,885 21 1 : 12,233
Markham 338,500 20 1 : 16,925
Milton 132,979 1 1 : 132,979
Mississauga 717,691 32 1 : 22,428
Oakville 213,759 3 1 : 71,253
Oshawa 175,400 1 1 : 175,400
Pickering 100,000 1 1 : 100,000
Richmond Hill 202,000 9 1 : 22,444
Vaughan 323,100 4 1 : 80,775
Whitby 138,501 4 1 : 34,625
Average 247,771 9 1 : 26,207
Clarington (2024) 108,757 1 1 : 108,757
Municipality of Clarington Parks, Recreation and Culture Master Plan (Draft)
245
Gymnasiums
Municipality 2021 Population Supply Service Level
Ajax 126,666 3 1 : 42,222
Kitchener 256,885 10 1 : 25,689
Markham 338,500 8 1 : 42,313
Milton 132,979 4 1 : 33,245
Mississauga 717,691 34 1 : 21,109
Oakville 213,759 6 1 : 35,627
Oshawa 175,400 3 1 : 58,467
Pickering 100,000 2 1 : 50,000
Richmond Hill 202,000 13 1 : 15,538
Vaughan 323,100 9 1 : 35,900
Whitby 138,501 13 1 : 10,654
Average 247,771 10 1 : 25,957
Clarington (2024) 108,757 1* 1 : 108,757
*Excludes the mini gymnasium at the South Courtice Arena, which has program limitations due to its
small size.
Dedicated Youth Space
Municipality 2021 Population Supply Service Level
Ajax 126,666 0 n/a
Kitchener 256,885 12 1 : 21,407
Markham 338,500 4 1 : 84,625
Milton 132,979 7 1 : 18,997
Mississauga 717,691 0 n/a
Oakville 213,759 0 n/a
Oshawa 175,400 2 1 : 87,700
Pickering 100,000 0 n/a
Richmond Hill 202,000 2 1 : 101,000
Vaughan 323,100 0 n/a
Whitby 138,501 3 1 : 46,167
Average 247,771 3 1 : 90,849
Clarington (2024) 108,757 2 1 : 54,379
Municipality of Clarington Parks, Recreation and Culture Master Plan (Draft)
246
Dedicated Older Adult Space
Municipality 2021 Population Supply Service Level
Ajax 126,666 0 n/a
Kitchener 256,885 1 1 : 256,885
Markham 338,500 5 1 : 67,700
Milton 132,979 1 1 : 132,979
Mississauga 717,691 10 1 : 71,769
Oakville 213,759 5 1 : 42,752
Oshawa 175,400 5 1 : 35,080
Pickering 100,000 1 1 : 100,000
Richmond Hill 202,000 1 1 : 202,000
Vaughan 323,100 20 1 : 16,155
Whitby 138,501 2 1 : 69,251
Average 247,771 5 1 : 53,441
Clarington (2024) 108,757 2 1 : 54,379
Indoor Artificial Turf Fields
Municipality 2021 Population Supply Service Level
Ajax 126,666 0 n/a
Kitchener 256,885 0 n/a
Markham 338,500 3 1 : 112,833
Milton 132,979 1 1 : 132,979
Mississauga 717,691 3 1 : 239,230
Oakville 213,759 1 1 : 213,759
Oshawa 175,400 1 1 : 175,400
Pickering 100,000 1 1 : 100,000
Richmond Hill 202,000 1 1 : 202,000
Vaughan 323,100 1 1 : 323,100
Whitby 138,501 2 1 : 69,251
Average 247,771 1 1 : 194,667
Clarington (2024) 108,757 1 1 : 108,757
Municipality of Clarington Parks, Recreation and Culture Master Plan (Draft)
247
Library Space
Municipality 2021
Population
Library
Branches
Total Area
(Sq. Ft.)
Service Level
(Sq. Ft. per Person)
Ajax 126,666 3 56,100 0.44
Kitchener 256,885 5 155,214 0.60
Markham 338,500 4 151,401 0.45
Milton 132,979 3 53,337 0.40
Oakville 213,759 7 108,301 0.51
Oshawa 175,400 4 95,085 0.54
Pickering 100,000 3 51,000 0.51
Richmond Hill 202,000 4 102,000 0.50
Whitby 138,501 3 76,800 0.55
Average 187,188 4 94,360 0.50
Clarington (2024) 108,757 4 48,704 0.45
Rectangular Sports Fields
Municipality 2021 Population Supply Service Level
Ajax 126,666 63 1 : 2,011
Kitchener 256,885 63 1 : 4,078
Markham 338,500 125 1 : 2,708
Milton 132,979 52 1 : 2,557
Mississauga 717,691 247 1 : 2,906
Oakville 213,759 86 1 : 2,486
Oshawa 175,400 67 1 : 2,618
Pickering 100,000 37 1 : 2,703
Richmond Hill 202,000 58 1 : 3,483
Vaughan 323,100 141 1 : 2,291
Whitby 138,501 54 1 : 2,565
Average 247,771 90 1 : 2,745
Clarington (2024) 108,757 52 1 : 2,091
Municipality of Clarington Parks, Recreation and Culture Master Plan (Draft)
248
Ball Diamonds
Municipality 2021 Population Supply Service Level
Ajax 126,666 33 1 : 3,838
Kitchener 256,885 72 1 : 3,568
Markham 338,500 60 1 : 5,642
Milton 132,979 29 1 : 4,585
Mississauga 717,691 129 1 : 5,563
Oakville 213,759 54 1 : 3,959
Oshawa 175,400 58 1 : 3,024
Pickering 100,000 29 1 : 3,448
Richmond Hill 202,000 40 1 : 5,050
Vaughan 323,100 64 1 : 5,048
Whitby 138,501 37 1 : 3,743
Average 247,771 55 1 : 4,505
Clarington (2024) 108,757 37 1 : 2,939
Cricket Fields
Municipality 2021 Population Supply Service Level
Ajax 126,666 1 1 : 126,666
Kitchener 256,885 1 1 : 256,885
Markham 338,500 3 1 : 112,833
Milton 132,979 2 1 : 66,490
Mississauga 717,691 9 1 : 79,743
Oakville 213,759 1 1 : 213,759
Oshawa 175,400 1 1 : 175,400
Pickering 100,000 1 1 : 100,000
Richmond Hill 202,000 0 n/a
Vaughan 323,100 0 n/a
Whitby 138,501 1 1 : 138,501
Average 247,771 2 1 : 136,274
Clarington (2024) 108,757 1 1 : 108,757
Municipality of Clarington Parks, Recreation and Culture Master Plan (Draft)
249
Tennis Courts
Municipality 2021 Population Supply Service Level
Ajax 126,666 33 1: 3,838
Kitchener 256,885 36 1 : 7,136
Markham 338,500 61 1 : 5,549
Milton 132,979 17 1 : 7,822
Mississauga 717,691 159 1 : 4,514
Oakville 213,759 58 1 : 3,686
Oshawa 175,400 23 1 : 7,626
Pickering 100,000 20 1 : 5,000
Richmond Hill 202,000 93 1 : 2,172
Vaughan 323,100 130 1 : 2,485
Whitby 138,501 33 1 : 4,197
Average 247,771 60 1 : 4,111
Clarington (2024) 108,757 15 1 : 7,250
Pickleball Courts
Municipality 2021
Population
Dedicated
Supply
Shared
Supply Service Level
Ajax 126,666 0 7 1 : 18,095
Kitchener 256,885 4 3 1 : 36,698
Markham 338,500 8 8 1 : 21,156
Milton 132,979 3 14 1 : 7,822
Mississauga 717,691 6 40 1 : 15,602
Oakville 213,759 11 30 1 : 5,214
Oshawa 175,400 4 8 1 : 14,617
Pickering 100,000 1 7 1 : 12,500
Richmond Hill 202,000 2 1 1 : 67,333
Vaughan 323,100 0 30 1 : 10,770
Whitby 138,501 21 0 1 : 6,595
Average 247,771 5 13 1 : 13,103
Clarington (2024) 108,757 10 2 1 : 9,063
Municipality of Clarington Parks, Recreation and Culture Master Plan (Draft)
250
Basketball Courts
Municipality 2021 Population Supply Service Level
Ajax 126,666 27 1 : 4,691
Kitchener 256,885 29 1 : 8,858
Markham 338,500 24 1 : 14,104
Milton 132,979 18 1 : 7,388
Mississauga 717,691 56 1 : 12,816
Oakville 213,759 17.5 1 : 12,215
Oshawa 175,400 27 1 : 6,496
Pickering 100,000 14 1 : 7,143
Richmond Hill 202,000 32 1 : 6,313
Vaughan 323,100 75 1 : 4,308
Whitby 138,501 36 1 : 3,847
Average 247,771 32 1 : 7,667
Clarington (2024) 108,757 21 1 : 5,179
Splash Pads
Municipality 2021 Population Supply Service Level
Ajax 126,666 6 1 : 21,111
Kitchener 256,885 17 1 : 15,111
Markham 338,500 26 1 : 13,019
Milton 132,979 14 1 : 9,499
Mississauga 717,691 32 1 : 22,428
Oakville 213,759 20 1 : 10,688
Oshawa 175,400 13 1 : 13,492
Pickering 100,000 3 1 : 33,333
Richmond Hill 202,000 15 1 : 13,467
Vaughan 323,100 17 1 : 19,006
Whitby 138,501 19 1 : 7,290
Average 247,771 17 1 : 14,975
Clarington (2024) 108,757 16 1 : 6,797
Municipality of Clarington Parks, Recreation and Culture Master Plan (Draft)
251
Skate Parks
Municipality 2021 Population Supply Service Level
Ajax 126,666 3 1 : 42,222
Kitchener 256,885 4 1 : 64,221
Markham 338,500 6 1 : 56,417
Milton 132,979 1 1 : 132,979
Mississauga 717,691 10 1 : 71,769
Oakville 213,759 5 1 : 42,752
Oshawa 175,400 3 1 : 58,467
Pickering 100,000 1 1 : 100,000
Richmond Hill 202,000 2 1 : 101,000
Vaughan 323,100 9 1 : 35,900
Whitby 138,501 4 1 : 34,625
Average 247,771 4 1 : 56,781
Clarington (2024) 108,757 5 1 : 21,751
Leash-Free Dog Parks
Municipality 2021 Population Supply Service Level
Ajax 126,666 4 1 : 31,667
Kitchener 256,885 3 1 : 85,628
Markham 338,500 2 1 : 169,250
Milton 132,979 2 1 : 66,490
Mississauga 717,691 10 1 : 71,769
Oakville 213,759 7 1 : 30,537
Oshawa 175,400 2 1 : 87,700
Pickering 100,000 3 1 : 33,333
Richmond Hill 202,000 2 1 : 101,000
Vaughan 323,100 1 1 : 323,100
Whitby 138,501 2 1 : 69,251
Average 247,771 3 1 : 71,723
Clarington (2024) 108,757 3 1 : 36,252
Municipality of Clarington Parks, Recreation and Culture Master Plan (Draft)
252
Community Gardens
Municipality 2021 Population Supply Service Level
Ajax 126,666 1 1 : 126,666
Kitchener 256,885 14 1 : 18,349
Markham 338,500 1 1 : 338,500
Milton 132,979 3 1 : 44,326
Mississauga 717,691 8 1 : 89,711
Oakville 213,759 4 1 : 53,440
Oshawa 175,400 5 1 : 35,080
Pickering 100,000 1 1 : 100,000
Richmond Hill 202,000 8 1 : 25,250
Vaughan 323,100 4 1 : 80,775
Whitby 138,501 1 1 : 138,501
Average 247,771 5 1 : 54,510
Clarington (2024) 108,757 3 1 : 36,252
Playgrounds
Municipality 2021 Population Supply Service Level
Ajax 126,666 80 1 : 1,583
Kitchener 256,885 152 1 : 1,690
Markham 338,500 155 1 : 2,184
Milton 132,979 58 1 : 2,293
Mississauga 717,691 266 1 : 2,698
Oakville 213,759 138 1 : 1,549
Oshawa 175,400 113 1 : 1,552
Pickering 100,000 61 1 : 1,639
Richmond Hill 202,000 127 1 : 1,591
Vaughan 323,100 164 1 : 1,970
Whitby 138,501 95 1 : 1,458
Average 247,771 128 1 : 1,934
Clarington (2024) 108,757 63 1 : 1,726
Municipality of Clarington Parks, Recreation and Culture Master Plan (Draft)
253
Outdoor Lacrosse Boxes
Municipality 2021 Population Supply Service Level
Ajax 126,666 0 n/a
Kitchener 256,885 0 n/a
Markham 338,500 0 n/a
Milton 132,979 0 n/a
Mississauga 717,691 2 1 : 358,846
Oakville 213,759 0 n/a
Oshawa 175,400 0 n/a
Pickering 100,000 0 n/a
Richmond Hill 202,000 0 n/a
Vaughan 323,100 0 n/a
Whitby 138,501 2 1 : 69,251
Average 247,771 1 1 : 214,078
Clarington (2024) 108,757 1 1: 108,757
Watson & Associates Economists Ltd.
905-272-3600
info@watsonecon.ca September 5, 2024
Clarington Parks, Recreation, and
Culture Master Plan – Financial Analysis
Municipality of Clarington
________________________
Attachment 2 to Report
CAO-004-24
Watson & Associates Economists Ltd.
H:\Clarington\2023 Parks Rec Culture Master Plan\Report\Financial Analysis Report.docx
Table of Contents
Page
1. Financial Overview ............................................................................................. 1
2. Capital Needs and Funding Sources ................................................................ 1
2.1 Development Charges ............................................................................... 7
2.2 Community Benefits Charges .................................................................... 9
2.3 Parkland Conveyance/Payment-in-Lieu ................................................... 10
2.4 Parkland Development............................................................................. 16
3. Operating and Other Capital Funding Sources .............................................. 17
3.1 Fundraising, Donation, and/or Benevolent Funds .................................... 17
3.2 Grants and Subsidies............................................................................... 18
3.3 Property Taxes ........................................................................................ 18
3.3.1 Tax Increment Financing............................................................. 18
3.4 User Fees ................................................................................................ 19
4. Financial Analysis – Cashflow Analysis ......................................................... 20
5. Operating Impacts ............................................................................................ 24
5.1 Facilities and Outdoor Amenities ............................................................. 24
5.2 Studies ..................................................................................................... 30
6. Observations and Recommendations ............................................................ 31
6.1 Parkland Observations and Recommendations ....................................... 31
6.2 Other Observations and Recommendations ............................................ 32
Watson & Associates Economists Ltd.
H:\Clarington\2023 Parks Rec Culture Master Plan\Report\Financial Analysis Report.docx
List of Acronyms and Abbreviations
Acronym Full Description of Acronym
C.B.C. Community Benefits Charge
D.C. Development Charges
D.C.A. Development Charges Act, 1997, as amended
TIF Tax Increment Financing
Watson & Associates Economists Ltd. PAGE 1
Financial Analysis Report
1. Financial Overview
As the Municipality of Clarington (Municipality) grows, and the need to provide
additional parks, recreation, and culture facilities and amenities, the Municipality will
need to consider how to maximize the funding tools available to emplace new and/or
improved capital infrastructure. Once the capital infrastructure is in place, the
Municipality will also need to operate, maintain, and eventually replace the new and/or
improved assets. The Parks, Recreation, and Culture Master Plan (Master Plan)
provides the framework and standards to assist the Municipality in assessing the needs
to service their existing and growing community. As such, a review of the financial
impacts of the needs identified has been undertaken. The following provides details
related to the financial analysis, funding tools available under legislation, and
recommendations for consideration by the Municipality.
2. Capital Needs and Funding Sources
Capital needs have been identified in the Master Plan, based on various standards for
facilities and amenities. Table 1 provides a summary of the capital costs anticipated, as
identified through the Master Plan, over a short-term, medium-term, and long-term
forecast period. The total cost has been estimated between $180.34 million and
$184.05 million over the 2024-2036 forecast period.
It is noted that, in addition to the facilities and amenities identified in Table 1, additional
costs in parks that have not been identified include amenities such as:
• Shade structures and/or additional trees;
• Seating and/or picnic tables;
• Washrooms (permanent or temporary);
• Lighting;
• Parking for vehicles and bicycles; and
• Accessibility retrofits.
Although these additional amenities have not been specifically costed , some of these
costs may be covered in an estimated for general parkland development as identified in
Section 2.4 herein.
Watson & Associates Economists Ltd. PAGE 2
Financial Analysis Report
Additionally, there is potential for additional amenities associated with waterfront
development, costs of which, have not been identified at this time. The potential
additional amenities include, but are not limited to:
• Trails;
• An Outdoor Amphitheater for Performing Arts, Cultural Activities, and Other
Rentals;
• Seating, Signage, Shade, Lighting;
• Washrooms/Concessions;
• Picnic Areas;
• Outdoor Fitness Equipment;
• Playgrounds;
• Water Activities/Boat Launches; and/or
• Parking and Other Supporting Amenities.
The cost of these types of activities would be identified through detailed design of the
various parks and/or waterfront projects.
There has been a preliminary concept undertaken for the Bowmanville Park on the
former zoo lands, which includes a community, cultural, & education centre, recreational
and play elements, and various landscape typologies, such as woodlands and
meadows. However, the costs associated with this park are not available to include in
the Master Plan at this time, and therefore, have not been included in the financial
analysis contained herein. Elements of the park, however, will potentially be eligible for
recovery through various funding tools such as Development Charges (D.C.s),
Community Benefits Charges (C.B.C.s) and/or Payment-in-lieu (P.I.L.) of parkland
conveyance.
Watson & Associates Economists Ltd. PAGE 3
Financial Analysis Report
Table 1
Capital Infrastructure Needs
Facility
Requirements
Estimated
Capital Cost
Facility
Requirements
Estimated
Capital Cost
Facility
Requirements
Estimated
Capital Cost
Total Facility
Requirements
Total Estimated
Capital Cost
Total
Estimated
Capital Cost
(Low)
Total
Estimated
Capital Cost
(High)
Arenas (Ice Pads)2 Ice Pads $59,062,500 2 Ice Pads $59,062,500 $59,062,500 $59,062,500
Indoor Aquatic Centre 1 Pool $29,687,500 1 Pool $29,687,500 $29,687,500 $29,687,500
Multi-Purpose Space / Group Fitness Space 1 Space $5,250,000 1 Space $5,250,000 $5,250,000 $5,250,000
Indoor Walking Track 1 Track $2,250,000 1 Track $2,250,000 $2,250,000 $2,250,000
Library Space 2 Branches $37,750,000 1 Branch $2,625,000 3 Branches $40,375,000 $40,375,000 $40,375,000
Outdoor Rectangular Fields 12 Unlit or
8 Lit
$4,000,000 to
$4,200,000
10 Unlit or
6.5 Lit
$3,250,000 to
$3,500,000
9.5 Unlit or
6.5 Lit
$3,250,000 to
$3,325,000
31.5 Unlit or
21 Lit Fields
$10,500,000 to
$11,025,000 $10,500,000 $11,025,000
Ball Diamonds 4 Unlit or
2.5 Lit
$1,250,000 to
$1,400,000
7 Unlit or
4.5 Lit
$2,250,000 to
$2,400,000
6 Unlit or
4 Lit
$2,000,000 to
$2,100,000
17 Unlit or
11 Lit Diamonds
$5,500,000 to
$5,950,000 $5,500,000 $5,900,000
Cricket Fields 1 Field
(Unlit or Lit)
$350,000 to
$500,000
1 Field
(Unlit or Lit)
$350,000 to
$500,000 $350,000 $500,000
Outdoor Tennis Courts 9 Courts
(Unlit or Lit)
$1,350,000 to
$2,160,000
6 Courts
(Unlit or Lit)
$900,000 to
$1,440,000
2 Courts
(Unlit or Lit)
$300,000 to
$480,000
17 Courts
(Unlit or Lit)
$2,550,000 to
$4,080,000 $2,550,000 $4,080,000
Outdoor Pickleball Courts 14 Courts (Unlit
or Lit)
$1,400,000 to
$2,100,000
4 Courts
(Unlit or Lit)
$400,000 to
$600,000
4 Courts
(Unlit or Lit)
$400,000 to
$600,000
22 Courts
(Unlit or Lit)
$2,200,000 to
$3,300,000 $2,200,000 $3,300,000
Basketball Courts 3 Courts $300,000 3 Courts $300,000 4 Courts $400,000 10 Courts $1,000,000 $1,000,000 $1,000,000
Outdoor Splash Pads 6 Locations $3,000,000 4 Locations $2,000,000 4 Locations $2,000,000 14 Locations $7,000,000 $7,000,000 $7,000,000
Cooling stations 2 Locations $700,000 2 Locations $700,000 $700,000 $700,000
Small-Scale Skate Zones 1 Location $100,000 2 Locations $200,000 3 Locations $300,000 6 Locations $600,000 $600,000 $600,000
Leash-Free Dog Parks 1 Location $140,000 1 Location $140,000 $140,000 $140,000
Compact Leash-Free Dog Parks 2 Locations $200,000 2 Locations $200,000 $200,000 $200,000
Community Gardens 1 Location $175,000 1 Location $175,000 $175,000 $175,000
Outdoor Fitness Equipment 1 Location $200,000 1 Location $200,000 2 Locations $400,000 4 Locations $800,000 $800,000 $800,000
Playgrounds 10 Locations $4,000,000 10 Location $4,000,000 10 Locations $4,000,000 30 Locations $12,000,000 $12,000,000 $12,000,000
Total Facilities $180,340,000 $184,045,000$180,340,000 to $184,045,000
Total Planning Period (2024-2036)Short-Term (2024-2028)Medium Term (2029-2033)Long-Term (2034-2036)
$45,777,500 to $53,531,800 $117,812,500 to $118,952,500 $16,750,000 to $17,205,000
Total Planning Period Capital
Costs
(2024-2036)
Facility/Amenity
Watson & Associates Economists Ltd. PAGE 1
Financial Analysis Report
Additionally, costs have been considered at approximately $2 7.59 million, for the
following (see Table 2):
• A Bookmobile for the Orono/Rural Areas of the Municipality, in lieu of a library
branch;
• Studies required;
• Relocation of the Clarke Schoolhouse; and
• Library collection materials.
Note that costs associated with library collection materials required for the new branch
libraries and the bookmobile have been estimated based on average historical items per
capita of various physical and digital items, and average costs. Based on the
population growth to 2036, it is estimated that additional collection items would cost
approximately $6.25 million. This amount is included in the $27.59 million provided in
Table 2.
Furthermore, parkland development costs have been estimated at approximately
$13.94 million (see Section 2-4 herein).
In total, capital costs identified are anticipated to range from $221.86 million to $225.57
million over the forecast period, as summarized in Table 3. Note that these cost
exclude the cost associated with additional parkland acquisition that may be required
due to limitations of the Planning Act related to conveyance/payment-in-lieu of
conveyance (see Section 2.3).
Watson & Associates Economists Ltd. PAGE 2
Financial Analysis Report
Table 2
Studies and Additional Work Needs
2024-2028 2029-2033 2034-2036 2024-2036
10 Park Renewal Strategy $150,000 $150,000
15 Trail development $6,000,000 $7,500,000 $4,500,000 $18,000,000
19 Negotiating arena access in Oshawa Staff time with
cost $0
20 Darlington Sports Centre BCA $30,000 $30,000
21
Indoor aquatic centre - South Bowmanville Recreation
Centre (SBRC) (Additional Funding to be added to the
existing conceptual work)
$25,000 $25,000
22 Alan Strike Aquatic Centre and Squash Courts
(ASASC) Feasibility Study $35,000 $35,000
23 Courtice Community Complex feasibility study for
indoor aquatic centre $150,000 $150,000
29 Cost for facility enhancements to community halls $600,000 $750,000 $450,000 $1,800,000
47 Orono Pool capital renewal plan $25,000 $25,000
57 Accessible Playground Distribution Strategy $35,000 $35,000
61 Visual Arts Centre feasibility study $40,000 $40,000
63 Performing Arts Centre feasibility study $150,000 $150,000
65 Feasibility studies for library spaces in:
Bowmanville $100,000 $100,000
Courtice $60,000 $60,000
Newcastle $45,000 $45,000
67 Cost to establish bookmobile $150,000 $150,000
70 Cost for creating a centralized heritage hub in
Bowmanville - Relocation of Clarke Schoolhouse $100,000 $100,000
73 Special Events and Festivals Strategy $80,000 $80,000
80 Update Older Adult Strategy $80,000 $80,000
86 CLMA Technology Strategy $30,000 $30,000
97 Master Plan five year review $250,000 $250,000
Provision for Additional Collection Materials $50,000 $5,800,000 $400,000 $6,250,000
Total $7,180,000 $14,800,000 $5,605,000 $27,585,000
Studies/Additional Work
Master
Plan
Item
Timing & Cost
(excluding HST)
Watson & Associates Economists Ltd. PAGE 3
Financial Analysis Report
Table 3
Total Estimated Capital Costs
Facility
Requirements
Estimated
Capital Cost
Facility
Requirements
Estimated
Capital Cost
Facility
Requirements
Estimated
Capital Cost
Total Facility
Requirements
Total Estimated
Capital Cost
Total
Estimated
Capital Cost
(Low)
Total
Estimated
Capital Cost
(High)
Arenas (Ice Pads)2 Ice Pads $59,062,500 2 Ice Pads $59,062,500 $59,062,500 $59,062,500
Indoor Aquatic Centre 1 Pool $29,687,500 1 Pool $29,687,500 $29,687,500 $29,687,500
Multi-Purpose Space / Group Fitness Space 1 Space $5,250,000 1 Space $5,250,000 $5,250,000 $5,250,000
Indoor Walking Track 1 Track $2,250,000 1 Track $2,250,000 $2,250,000 $2,250,000
Library Space 2 Branches $37,750,000 1 Branch $2,625,000 3 Branches $40,375,000 $40,375,000 $40,375,000
Outdoor Rectangular Fields 12 Unlit or
8 Lit
$4,000,000 to
$4,200,000
10 Unlit or
6.5 Lit
$3,250,000 to
$3,500,000
9.5 Unlit or
6.5 Lit
$3,250,000 to
$3,325,000
31.5 Unlit or
21 Lit Fields
$10,500,000 to
$11,025,000 $10,500,000 $11,025,000
Ball Diamonds 4 Unlit or
2.5 Lit
$1,250,000 to
$1,400,000
7 Unlit or
4.5 Lit
$2,250,000 to
$2,400,000
6 Unlit or
4 Lit
$2,000,000 to
$2,100,000
17 Unlit or
11 Lit Diamonds
$5,500,000 to
$5,950,000 $5,500,000 $5,900,000
Cricket Fields 1 Field
(Unlit or Lit)
$350,000 to
$500,000
1 Field
(Unlit or Lit)
$350,000 to
$500,000 $350,000 $500,000
Outdoor Tennis Courts 9 Courts
(Unlit or Lit)
$1,350,000 to
$2,160,000
6 Courts
(Unlit or Lit)
$900,000 to
$1,440,000
2 Courts
(Unlit or Lit)
$300,000 to
$480,000
17 Courts
(Unlit or Lit)
$2,550,000 to
$4,080,000 $2,550,000 $4,080,000
Outdoor Pickleball Courts 14 Courts (Unlit
or Lit)
$1,400,000 to
$2,100,000
4 Courts
(Unlit or Lit)
$400,000 to
$600,000
4 Courts
(Unlit or Lit)
$400,000 to
$600,000
22 Courts
(Unlit or Lit)
$2,200,000 to
$3,300,000 $2,200,000 $3,300,000
Basketball Courts 3 Courts $300,000 3 Courts $300,000 4 Courts $400,000 10 Courts $1,000,000 $1,000,000 $1,000,000
Outdoor Splash Pads 6 Locations $3,000,000 4 Locations $2,000,000 4 Locations $2,000,000 14 Locations $7,000,000 $7,000,000 $7,000,000
Cooling stations 2 Locations $700,000 2 Locations $700,000 $700,000 $700,000
Small-Scale Skate Zones 1 Location $100,000 2 Locations $200,000 3 Locations $300,000 6 Locations $600,000 $600,000 $600,000
Leash-Free Dog Parks 1 Location $140,000 1 Location $140,000 $140,000 $140,000
Compact Leash-Free Dog Parks 2 Locations $200,000 2 Locations $200,000 $200,000 $200,000
Community Gardens 1 Location $175,000 1 Location $175,000 $175,000 $175,000
Outdoor Fitness Equipment 1 Location $200,000 1 Location $200,000 2 Locations $400,000 4 Locations $800,000 $800,000 $800,000
Playgrounds 10 Locations $4,000,000 10 Location $4,000,000 10 Locations $4,000,000 30 Locations $12,000,000 $12,000,000 $12,000,000
Total Facilities $180,340,000 $184,045,000
Studies & Other Additional Needs $7,180,000 $14,800,000 $5,605,000 $27,585,000 $27,585,000 $27,585,000
Parkland Development 44.3 Hectares $5,564,300 38.6 hectares $5,286,400 22.4 Hectares $3,087,800 105.3 Hectares $13,938,500 $13,938,500 $13,938,500
Grand Total* $221,863,500 $225,568,500
* Excludes potential additional parkland acquisition costs
Total Planning Period Capital
Costs
(2024-2036)
Facility/Amenity
Total Planning Period (2024-2036)Short-Term (2024-2028)Medium Term (2029-2033)Long-Term (2034-2036)
$180,340,000 to $184,045,000
$58,521,800 to $60,531,800 $137,898,900 to $139,038,900 $25,442,800 to $25,997,800 $251,863,500 to $225,568,500
$45,777,500 to $53,531,800 $117,812,500 to $118,952,500 $16,750,000 to $17,205,000
Watson & Associates Economists Ltd. PAGE 4
Financial Analysis Report
Municipalities in the Province use various funding tools available to assist in the
emplacement of capital infrastructure. The most common funding tools used include
D.C.s, C.B.C.s, parkland conveyance/P.I.L., and property taxes. However, depending
on the capital projects, many municipalities are successful in receiving funds through
grant/subsidy programs, and/or through donations, fundraising and/or benevolent
contributions from the community.
The eligibility for funding under D.C.s, C.B.C.s, and parkland conveyance/P.I.L., for the
capital infrastructure identified in Table 3, are summarized in Table 4. Although many of
the costs associated with the capital infrastructure, studies, and other additional work,
are recoverable from multiple funding tools, some of the funding tools provide a higher
recovery than others. The legend below provides a summary of the various funding
tools available to recover costs of the Master Plan works, and indicates the highest to
lowest tools available by indicating the highest as the primary funding source, the
secondary funding source available, and the tertiary funding source. As there are
limitations to the services that can be recovered under some of the funding tools, and/or
there are limitations to recovery through the funding tools, other tools not presented in
Table 5 are available.
Watson & Associates Economists Ltd. PAGE 5
Financial Analysis Report
Table 4
Funding Eligibility for Capital Infrastructure, Parkland Development,
and Study & Additional Needs
Development
Charges
Community
Benefits
Charges
Parkland
Conveyance/
P.I.L.
Facilities/Amenities
Arenas (Ice Pads)●○
Indoor Aquatic Centre ●○
Multi-Purpose Space / Group Fitness Space ●○
Indoor Walking Track ●○
Library Space ●○
Outdoor Rectangular Fields ●○◦
Ball Diamonds ●○◦
Cricket Fields ●○◦
Outdoor Tennis Courts ●○◦
Outdoor Pickleball Courts ●○◦
Basketball Courts ●○◦
Outdoor Splash Pads ●○◦
Cooling stations ●○◦
Small-Scale Skate Zones ●○◦
Leash-Free Dog Parks ●○◦
Compact Leash-Free Dog Parks ●○◦
Community Gardens ●○◦
Outdoor Fitness Equipment ●○◦
Playgrounds ●○◦
Parkland Development ●○◦
Legend:
Eligible
Funding
Source
●Primary
○Secondary
◦Tertiary
Funding Eligiblity
Item
Watson & Associates Economists Ltd. PAGE 6
Financial Analysis Report
Table 4 (Continued)
Funding Eligibility for Capital Infrastructure, Parkland Development,
and Study & Additional Needs
Development
Charges
Community
Benefits
Charges
Parkland
Conveyance/
P.I.L.
Studies/Additional Work
Park Renewal Strategy ●○
Trail development ●○◦
Negotiating arena access in Oshawa
Darlington Sports Centre BCA ●
Indoor aquatic centre - South Bowmanville Recreation Centre (SBRC)
(Additional Funding to be added to the existing conceptual work)●○◦
Alan Strike Aquatic Centre and Squash Courts (ASASC) Feasibility Study ●○
Courtice Community Complex feasibility study for indoor aquatic centre ●○
Negotiating access to school boards ●○
Cost for facility enhancements to community halls ●○
Orono Pool capital renewal plan ●
Accessible Playground Distribution Strategy ●○
Visual Arts Centre feasibility study ●
Performing Arts Centre feasibility study ●
Feasibility studies for library spaces in:
Bowmanville ●○
Courtice ●○
Newcastle ●○
Cost to establish bookmobile ●○
Cost for creating a centralized heritage hub in Bowmanville - Relocation of
Clarke Schoolhouse ●
Special Events and Festivals Strategy ○●
Update Older Adult Strategy ●○
CLMA Technology Strategy ●
Accessibility retrofits
Master Plan five year review ●○
Feasibility studies and business plans prior to undertaking major capital
projects
Legend:
Eligible
Funding
Source
●Primary
○Secondary
◦Tertiary
Funding Eligiblity
Item
Watson & Associates Economists Ltd. PAGE 7
Financial Analysis Report
Table 4 (Continued)
Funding Eligibility for Capital Infrastructure, Parkland Development,
and Study & Additional Needs
The following sections provide further information related to the funding tools available
to the Municipality and their potential limitations.
2.1 Development Charges
The Development Charge Act, 1997, as amended (D.C.A.) provides municipalities with
the authority to recover growth-related capital costs associated with development and
redevelopment. The D.C.A. has been subject to a number of changes since 2016 which
Development
Charges
Community
Benefits
Charges
Parkland
Conveyance/
P.I.L.
Other Amenities (Not Currently Costed)
Shade Structures &/or Additional Trees ●○◦
Seating ●○◦
Picnic Tables ●○◦
Washrooms (permanent or temporary)●○◦
Lighting ●○◦
Parking (for vehicles & bicycles)●○◦
Waterfront Potential Development:
Trails ●○◦
Outdoor Amphitheater for Performing Arts, Cultural Activities, and Other
Rentals ●○◦
Seating, Signage Shade, Lighting, Washrooms, Accessibility, Parking,
and Other Supporting Amenities ●○◦
Picnic Aras ●○◦
Outdoor Fitness Equipment ●○◦
Playgrounds ●○◦
Water Activities - Boat Launches ●○◦
Legend:
Eligible
Funding
Source
●Primary
○Secondary
◦Tertiary
Funding Eligiblity
Item
Watson & Associates Economists Ltd. PAGE 8
Financial Analysis Report
have provided additional restrictions to municipalities to recover the costs associated
with growth. These changes include mandatory exemptions for affordable housing
units, attainable housing units, non-profit housing units, additional residential units
(being added to new and existing residential units), industrial expansions (up to 50% of
existing size), and discounts for rental housing based on the number of bedrooms in
each unit. Although some of the recent changes to the D.C.A. have limited the serv ices
that can be recovered for, Library Services, as well, Parks and Recreation Services are
eligible for recovery through D.C.s. The Municipality has a D.C. by-law in place that is
recovering costs associated with these services and is currently undertaking an update
to the by-law. The current D.C. by-law was passed in January 2021.
The Master Plan provides for various additional parks and recreation needs to service
growth, as well as growth-related library needs. Further, there are a number of studies
that have been identified, some of which are fully or partially recoverable through D.C.s.
It is noted that the D.C.A. imposes limitations, mandatory deductions, as well as
statutory exemptions and discounts to certain types of developments as discussed
earlier. The D.C.A. requires municipalities through their D.C. background studies to
undertake historical level of service/service standard calculations. These calculations
set a maximum ceiling that can be included in the D.C. calculations for recovery of
incremental capital costs associated with growth. As part of the Municipality’s future
D.C. background studies, these calculations will have to be undertaken to assess
whether or not all of the growth-related costs could be included in the calculations.
In addition, to the service standard maximum ceiling, the D.C.A., requires municipalities
to reduce the amounts to be recovered through D.C.s for costs associated with the
following:
• uncommitted excess capacity;
• benefit to existing development;
• grants, subsidies, or other contributions; and
• costs associated with growth beyond the forecast period being considered.
It is noted that the growth forecast contained in this Master Plan may differ from the
growth forecast identified in future D.C. studies, which may require adjustments to the
timing of projects, and/or require post period deductions to be made. For the pu rposes
Watson & Associates Economists Ltd. PAGE 9
Financial Analysis Report
of this Master Plan, it is anticipated that D.C. eligible costs identified herein, would be
included for recovery through D.C. revenues.
2.2 Community Benefits Charges
The Planning Act provides municipalities with the authority to recover growth-related
capital costs associated with development and redevelopment through a C.B.C. Since
the introduction of the C.B.C., this section of the Planning Act has been subject to a
number of amendments that have introduced additional restrictions on municipalities to
recover the costs associated with growth through this funding tool , these include
mandatory exemptions for:
• Development or redevelopment of fewer than 10 residential units, and in respect
of buildings or structures with fewer than five storeys;
• A building or structure intended for use as a long -term care home;
• A building or structure intended for use as a retirement home;
• A building or structure intended for use by:
i. A publicly assisted university (within the meaning of section 1 of the
Ministry of Training, Colleges and Universities Act);
ii. A college or university federated or affiliated with universities described in
i. above; or
iii. An Indigenous Institute prescribed for the purposes of section 6 of the
Indigenous Institutes Act, 1997;
• A building or structure intended for use as a memorial home, clubhouse, or
athletic grounds by an Ontario branch of the Royal Canadian Legion;
• A building or structure intended for use as a hospice to provide end -of-life care;
and
• Not-for-profit housing.
In addition, affordable residential units, and attainable residential units (as defined in the
D.C.A.) must be excluded from the area of the buildings subject to a C.B.C.
The amount of a C.B.C. cannot exceed an amount equal to the prescribed percentage
of the value of the land on the day prior to building permit issuance. Currently, the
prescribed percentage, set by regulation, is 4% of land value. Municipalities may allo w
Watson & Associates Economists Ltd. PAGE 10
Financial Analysis Report
a landowner to provide in-kind contributions towards facilities, services, or matters, in
lieu of paying a C.B.C.
A C.B.C. by-law is intended to recover growth-related capital costs associated with the
eligible high-density developments and may be imposed with respect to the services
that are also recoverable through D.C.s, provided the capital costs that are to be fu nded
through a C.B.C. are not the same capital costs that are intended to be funded through
D.C.s.
In addition, a C.B.C. can include costs for parkland acquisition that are in excess of
what the Planning Act parkland provisions will allow for (see Section 2.3 for potential
costs to consider for parkland acquisition). However, a C.B.C. can also include capital
costs associated with growth for non-D.C. eligible services, such as arts, entertainment,
heritage, technology, landfill, etc. C.B.C. strategies typically include a prioritization of
the capital needs that the municipality may wish to recover, and may therefore, not
include costs associated with capital costs, studies and other matters identified in the
Master Plan.
It is noted that the Municipality does not currently have a C.B.C. by-law in place,
however, they are currently undertaking the necessary strategy to consider passage of
a C.B.C. by-law. Master Plan projects/costs that would be eligible for consideration
through C.B.C. funding has been identified in Table 4.
2.3 Parkland Conveyance/Payment-in-Lieu
The Planning Act, Section 42, provides what municipalities can impose on development
with respect to the conveyance of land for parks or other public recreational purposes.
Further, Section 51.1 of the Planning Act provides similar provisions with respect to
parkland imposed as a condition of approval for a plan of subdivision. Regarding
conveyance, the land conveyed may not exceed the standard requirements of 2% of
land proposed for development for commercial and industrial purposes, or 5% of land
proposed for development for all other purposes (e.g. residential and institutional). A
municipality may also elect to impose the alternative requirement permitted under the
Planning Act for residential purposes, by imposing a maximum rate of up to 1 hectare
(ha) per 600 dwelling units. Further, a municipality may also require a P.I.L. of
parkland, equal to value of the land under the standard requirements set out in Section
Watson & Associates Economists Ltd. PAGE 11
Financial Analysis Report
42(1), or at the alternative requirement of 1 ha per 1,000 dwelling units for residential
development.
The Planning Act, also caps the amount of parkland dedication for the alternative
requirement whereby conveyance or P.I.L cannot be greater than:
a) 10% of the land or the value of the land, for land proposed for development or
redevelopment that is five hectare or less in area; and
b) 15% of the land or value of the land, for land proposed for development or
redevelopment that is greater than five hectares.
Based on the Master Plan’s recommendations, the Municipality will require
approximately 105 additional hectares of parkland over the forecast period to 2036.
These needs are summarized in Table 5.
Table 5
Parkland Needs
To assess the potential future conveyance and P.I.L. of parkland, the growth forecast
for Clarington, as identified in the Durham Region Growth Management Study (G.M.S.)
– Phase 2 report, dated October 17, 2022, which provided the area municipal growth
allocations and land needs, has been used. Table 6 provides the residential growth
forecast of population, housing and residential land absorption estimated to 2036. The
forecast anticipates an increase in population of 53,883, to be housed in 17,420 new
residential units, between 2024 and 2036. The anticipated mix in forecast dwelling units
by type is approximately 51% in low density, 31% in medium density, and 18% high
density. Applying an average density assumption of 20 units per net hectare for low
density development, 48 units per net hectare for medium density and 167 units per net
hectare for high density, the anticipated residential land absorption over the period to
2036 would be approximately 575 hectares.
2024
Exisiting
(hectares)
2024-2028
Requirements
(hectares)
2029-2033
Requirements
(hectares)
2034-2036
Requirement
s (hectares)
2024-2036
Additional
Park Needs
(hectares)
Population (incl. Census Undercount)108,757 131,826 151,438 162,640 53,883
Municipal Wide Parks
Community Parks
Neighbourhood Parks 0.67 0.75 73.3 98.9 113.6 122.0 48.7
Parkettes/Urban Parks and Squares 0.19 0.15 20.4 19.8 22.7 24.4 4.0
Total Park Supply*2.02 2.00 220.0 263.7 302.9 325.3 105.3
* Excludes Open Spaces, Naturalized Areas, Future or Undeveloped Parks, and Non-Municipally Owned Parks (e.g., Conservation Areas).
Park Hierarchy
Current
Standard (ha
per 1,000
residents)
1.10 126.3 178.9 166.6
Recommended
Standard (ha
per 1,000
residents)
145.0
Park Supply
52.6 1.16
Watson & Associates Economists Ltd. PAGE 12
Financial Analysis Report
Table 6
Residential Population, Household, and Land Absorption Forecast
The non-residential employment growth for the Municipality to 2036 is summarized in
Table 7. As non-residential development employment in the Work at Home (WAH)
sector is captured in the residential development and the No Fixed Place of Work
(NFPOW) sector do not generate new buildings specifically, they are excluded from the
lands that would contribute to parkland conveyance or P.I.L. Additionally, as the growth
in the primary sector (i.e., agricultural sector), is minimal, it has been assumed that
there will not be any substantial parkland conveyance or P.I.L. funding generated from
this sector in the analysis.
Table 7
Non-Residential Employment Forecast by Sector
As the industrial, commercial, and institutional sectors provide the majority of new
building space that will be developed, Table 8 provides the for the anticipated
development of approximately 10.57 million square feet of additional non-residential
gross floor area over the forecast period (2024-2036). The anticipated mix in forecast
by type is approximately 52% industrial development, 26% commercial/population
related development and 22% institutional development. Applying average lot coverage
of 32.5% for industrial and 25% for commercial/population related and institutional
Low Density &
Other
Medium
Density High Density Total Units
2021 Census 105,267 29,115 4,035 2,815 35,965
2024 (Interpolated)108,757 31,500 5,058 3,472 40,030
2026 Forecast 123,730 33,090 5,740 3,910 42,740
2031 Forecast 143,970 37,070 7,970 5,310 50,350
2036 Forecast 162,640 40,390 10,430 6,630 57,450
2024-2036 Increment 53,883 8,890 5,372 3,158 17,420
444.5 111.9 18.9 575.3
Dwelling Units
2024-2036 Net Developable Land (ha)
Population
Including
UndercountYear
Primary Industrial
Commerical/
Population
Related Institutional
Work at
Home (WAH)
No Fixed
Place of
Work
(NFPOW)Total
2016 Census 660 7,110 7,880 4,655 2,950 3,764 27,019
2024 (Interpolated)707 7,982 8,726 5,167 3,240 4,101 29,923
2026 Forecast 712 9,495 10,422 6,215 3,710 4,491 35,045
2031 Forecast 717 10,744 12,672 7,534 4,294 4,946 40,907
2036 Forecast 721 11,895 14,811 8,726 4,821 5,357 46,331
2024-2036 Increment 14 3,913 6,085 3,559 1,581 1,256 16,408
Year
Employment By Sector
Watson & Associates Economists Ltd. PAGE 13
Financial Analysis Report
development, would indicate non-residential land absorption over the period of
approximately 346 hectares.
Table 8
Non-Residential Employment, Gross Floor Area, and Land Absorption Forecast
In determining the amount of parkland conveyance supplied conveyance supplied by
the forecast development, requirements allowed for in the Planning Act were applied.
The standard requirements of 2% of land area for commercial and industrial
development were applied to the forecast developable land absorption of approximately
258 ha. The 5% standard requirement for residential and institutional developm ent
were applied to the forecast developable land absorption of approximately 663 ha. As
summarized in Table 9, the standard requirements would produce a total parkland
conveyance of 38.3 ha. This parkland yield would be the same for P.I.L. of parkland at
the standard requirements.
The same process was applied for the alternative requirements, with parkland
conveyance calculated at 1 ha per 600 residential dwelling units and P.I.L. of parkland
calculated at 1 ha per 1,000 residential dwelling units. As summarized in Table 9, the
alternative requirements would produce a total parkland conveyance of 38.6 ha. P.I.L.
of parkland at the alternative requirements would yield the equivalent of 27.0 ha of
parkland.
It is noted that, at the Master Plan level, it is unknown what the size of specific parcels
of developable lands will be, therefore, it is unknown how the capping provisions of the
Planning Act may impact these calculations. In addition, it is unknown how much of the
residential development may be exempt from parkland requirements for those
developments that are affordable housing units, attainable housing units, non -profit
Industrial
Commerical/
Population
Related Institutional Total
2016 Census 19,645 9,954,000 3,546,000 3,072,300 16,572,300
2024 (Interpolated)21,875 11,174,800 3,926,700 3,410,220 18,511,720
2026 Forecast 26,132 13,293,000 4,689,900 4,101,900 22,084,800
2031 Forecast 30,950 15,041,600 5,702,400 4,972,440 25,716,440
2036 Forecast 35,432 16,653,000 6,664,950 5,759,160 29,077,110
2024-2036 Increment 13,557 5,478,200 2,738,250 2,348,940 10,565,390
156.6 101.8 87.3 345.7
Employment
(excluding
WAH, NFPOW
& Primary)
Gross Floor Area (sq.ft.)
2024-2036 Developable Land Area (ha)
Year
Watson & Associates Economists Ltd. PAGE 14
Financial Analysis Report
housing units, affordable housing units contained in a future inclusionary zoning by -law
and/or additional residential units, which are statutorily exempt as per the Planning Act.
Table 9
Forecast Parkland Conveyance or P.I.L. of Parkland
2024-2036
Based on the analysis, the Municipality should vary their policies for residential
development to maximize the parkland conveyance and P.I.L. they can receive from
development. For example:
• For low density development, the Municipality would be best to impose the
standard 5% provisions;
• For medium density development, the alternative rate for conveyance yields
more land, however for P.I.L., the standard 5% yields more; and
• For high density development, the alternative rate for conveyance or P.I.L. yields
higher land/land value.
When maximizing the policies for residential development as well as imposing the
standard 2% for commercial and industrial developments, and 5% for institutional
developments, the Municipality could yield as much as 46 hectares of land.
Based on the parkland needs identified in the Master Plan (as noted in Table 5), the
difference in needs for additional parkland of 105.3 hectares, will not be recoverable
through the Planning Act provisions. Depending on the policies imposed for
conveyance and/or P.I.L., there will be a shortage of parkland ranging from
approximately 59 ha. to 78 ha.
If the shortage of parkland is required to meet the needs of the Municipality, the lands
would need to be purchased through other Municipal funding sources (i.e., property
taxes, C.B.C. funding, other reserves, etc.). Based on a sample of average land val ues
Low
Density
& Other
Medium
Density
High
Density
Industrial
Commerical/
Population
Related
Institutional
Standard Requirements (land
conveyance & P.I.L.)22.2 5.6 0.9 3.1 2.0 4.4 38.3 105.3 67.0
Alternative Requirements (land
conveyance)14.8 9.0 5.3 3.1 2.0 4.4 38.6 105.3 66.7
Alternative Requirements (P.I.L.)8.9 5.4 3.2 3.1 2.0 4.4 27.0 105.3 78.3
Potential Maximum 22.2 9.0 5.3 3.1 2.0 4.4 46.0 105.3 59.3
Total
Parkland
Required
(ha)
Shortfall in
Parkland
Required (ha)
Note: Without having specific parcels of land that will be developed, it is unknown how the capping provisions of the Parkland Provisions of the Planning Act
will impact the above calculations, further limiting the potential for recovery.
Estimated
Parkland as
per Planning
Act (ha)
Parkland Dedication Scenarios
Residential Non-Residential
Watson & Associates Economists Ltd. PAGE 15
Financial Analysis Report
for vacant land currently for sale in the Municipality (see Table 11) the cost of land could
range from $372,000 per ha. to $4.53 million per ha., resulting in additional funding
needs of $22 million (in the Newcastle area) to $355 million (in Bowmanville). At the
average municipal-wide land value of $2.69 million per ha. and based on a shortfall of
59 ha., the estimated cost of additional parkland would be approximately $159.4 million
(as per Table 10).
Table 10
Forecast Parkland Conveyance or P.I.L. of Parkland Conveyance
2024-2036
As noted in Section 2.2, parkland needs, in excess of what municipalities are able to
recover through Planning Act provisions, can be included in a C.B.C. strategy. It is
recommended that the Municipality consider recovering for additional parkland
acquisition through a C.B.C. strategy.
Due to the shortfall in what the Planning Act provisions will provide the Municipality, it is
recommended that the parkland received through conveyance and/or P.I.L, is available
for development of parks and outdoor amenities versus for indoor recreation facilities.
The land acquisition costs associated with indoor facilities can be recovered through
D.C.s and/or C.B.C.s. Further, it is recommended that the Municipality invest in land
purchases in strategic locations, potentially just outside the current urban boundaries
and/or in hamlets, sooner than later, when vacant lands become available for sale at
lower costs (i.e., at unserviced land values). Otherwise, investing the funds in the
special parkland fund should follow the investment practices of the Municipality.
However, long term investments may be limited due to the new requirement that a
minimum of 60% of the opening reserve fund balance each year are to be spent or
allocated to projects. With the parkland requirements identified in the Master Plan, the
Municipality should have no issues meeting this legislative requirement.
Standard Requirements (land conveyance & P.I.L.)38.3 105.3 67.0 $180.0
Alternative Requirements (land conveyance)38.6 105.3 66.7 $179.3
Alternative Requirements (P.I.L.)27.0 105.3 78.3 $210.5
Potential Maximum 46.0 105.3 59.3 $159.4
Total
Parkland
Required
(ha)
Shortfall in
Parkland
Required (ha)
Potential Land
Acquisition Costs
for Shortfall
(Million $)
Estimated
Parkland as
per Planning
Act (ha)
Parkland Dedication Scenarios
Watson & Associates Economists Ltd. PAGE 16
Financial Analysis Report
Table 11
Average Sale Values of Vacant Land For Sale in Clarington
As of September, 2024
2.4 Parkland Development
In addition to the parkland amenities and trails identified in the Master Plan, there are
capital costs incurred by the Municipality for general parkland development. These are
Address Location
Size of
Property
(ha)Sale Price
Cost per
ha.
Cost per
acre
318 BENNETT ROAD Bowmanville 11.09 $6,200,000 $559,143 $226,277
231 BASELINE ROAD E Bowmanville 0.65 $1,799,000 $2,785,480 $1,127,246
883 MAPLE GROVE ROAD Bowmanville 20.05 $10,000,000 $498,799 $201,857
1 SPICER SQUARE Bowmanville 0.38 $3,680,000 $9,588,279 $3,880,245
381 BOWMANVILLE AVENUE Bowmanville 3.97 $1,999,900 $503,244 $203,656
2359 BASELINE ROAD W Bowmanville 0.32 $1,399,900 $4,331,486 $1,752,893
2271 RUNDLE ROAD S Bowmanville 12.80 $2,000,000 $156,198 $63,211
3799 RUNDLE ROAD Bowmanville 4.05 $999,990 $247,103 $99,999
52 DUKE STREET Bowmanville 0.07 $2,099,000 $30,365,124 $12,288,349
3350 MIDDLE ROAD Bowmanville 6.47 $4,500,000 $694,983 $281,250
21 HOLT ROAD
North of
Courtice/Bowmanville 11.94 $1,399,990 $117,269 $47,457
1030 TRULLS ROAD Courtice 1.62 $4,000,000 $2,471,050 $1,000,000
2153 PRESTONVALE ROAD Courtice 1.42 $2,990,000 $2,110,983 $854,286
2259 TRULLS ROAD Courtice 0.81 $2,750,000 $3,396,524 $1,374,527
505 TOWNLINE ROAD N Courtice 4.51 $1,999,000 $443,414 $179,443
34 VARCOE ROAD Courtice 0.03 $310,000 $10,348,326 $4,187,826
1576 CONCESSION RD Newcastle 10.62 $1,299,000 $122,328 $49,505
20 CLARKE STREET Newcastle 0.38 $339,000 $882,523 $357,145
LT 1-22 LAKESHORE ROAD Waterfront (Lovekin)7.24 $800,000 $110,438 $44,693
38 PARK STREET Orono 0.06 $299,900 $5,146,305 $2,082,639
3675 CONCESSION 5 ROAD Orono/Rural 29.10 $1,595,000 $54,807 $22,180
LOT 7 BURNHAM CREEK ROAD Orono/Rural/Kendal 4.07 $669,900 $164,582 $66,604
0 COLE ROAD
Rural/North of
Bowmanville 8.52 $988,000 $115,936 $46,918
PL30 ENFIELD ROAD Rural/Enfield 0.30 $499,900 $1,662,554 $672,813
0 PT LT 27 CON 9 Rural/Enfield 39.96 $649,000 $16,241 $6,573
77 KING LANE Rural/Hampton 0.51 $449,898 $882,318 $357,062
LOT 4 HIGHWAY 35 Rural/Minden Hills 2.02 $179,900 $88,908 $35,980
4601 CONCESSION 5 ROAD Rural/Starkville 19.72 $848,000 $43,001 $17,402
4396 GILMORE ROAD Rural/Starkville 45.74 $1,299,900 $28,421 $11,502
Average Cost/hectare (or acre) - Municipal-Wide $2,687,440 $1,087,570
Average Cost/hectare (or acre) - Bowmanville $4,531,555 $1,833,858
Average Cost/hectare (or acre) - Courtice $3,147,928 $1,273,923
Average Cost/hectare (or acre) - Newcastle $371,763 $150,447
Average Cost/hectare (or acre) - Orono/Rural $820,307 $331,967
Source: Realtor.ca
Watson & Associates Economists Ltd. PAGE 17
Financial Analysis Report
costs in excess of the base condition for parkland when conveyed (i.e., local service
requirement) required to be provided by developers as a condition of their development
agreements. The costs associated with parkland development have been estimated
based on the hectares of parkland needs identified in the Master Plan. The cost s per
hectare identified in the Municipality’s 2020 D.C. Background Study were inflation to
2024 values for the various types of existing parks. Note that in the D.C. Study, the
park types were categorized as Community Parks, District Parks, Neighbourhood Parks
and Parkettes. For purposes of this analysis, the cost per hectare identified in the D.C.
study for Community Parks and District Parks, were averaged. Table 12 provides the
estimated costs for parkland development over the short-term, medium-term, and long-
term forecast periods.
Table 12
Estimated Cost for Incremental Parkland Development
2024-2036
3. Operating and Other Capital Funding Sources
3.1 Fundraising, Donation, and/or Benevolent Funds
Fundraising, donations, and/or benevolent funds are often utilized by municipalities that
are planning new, expansion, and/or upgrades to parks, recreation, and/or culture
services. Fundraising efforts are often organized by community groups that advocate
for specific things such as arts and other cultural amenities and/or awareness in their
communities. As well, there are often personal or corporate donations or benevolent
fund received towards parks, recreation, and/or cultural services. These could include
naming rights for a specific recreation or cultural facility or room in a facility, amenities
such as park benches or play equipment in honour of a family member, beautification of
parks, etc. The receipt of funding such as this could be used for capital related
expenditures and/or ongoing maintenance costs.
hectares Cost hectares Cost hectares Cost hectares Cost
Municipal-Wide &
Community Parks $152,000 18.7 $2,843,700 21.6 $3,279,100 12.3 $1,873,000 52.6 $7,995,800
Neighbourhood Parks $106,400 25.6 $2,720,600 14.7 $1,565,000 8.4 $893,900 48.7 $5,179,500
Parkettes/Urban Squares $191,000 - $0 2.3 $442,300 1.7 $320,900 4.0 $763,200
Total 44.3 $5,564,300 38.6 $5,286,400 22.4 $3,087,800 105.3 $13,938,500
* As per 2020 D.C. Study (inflated)
2029-2033 Requirements 2034-2036 Requirements Total RequirementsPark Type
2024 Value
(inflated)
($/Hectare)
2024-2028 Requirements
Watson & Associates Economists Ltd. PAGE 18
Financial Analysis Report
As there have not been any specific fundraising, donations or benevolent funds
identified by Municipal staff at this time, the financial analysis has not included any
funding from these sources. However, if the Municipality does receive this type of
funding in the future, it would reduce the needs for funding from other sources, such as
property taxes.
3.2 Grants and Subsidies
Grants and subsidies often become available through Provincial and/or Federal
programs for parks, recreation, and/or cultural services. These grants and subsidies
can relate to operating and/or capital costs. However, often to access capital related
funding, capital projects must be “shovel ready” and are allocated on a case -by-case
basis. It is noted that to be “shovel ready” often requires detailed design to be
complete, land to be available, etc. Further, what is considered as “shovel ready” may
differ for the various funding programs available. Hence, the Master Plan does not
provide the Municipality with “shovel ready” projects, but will assist the Municipality in
identifying the timing of capital needs which would assist in forecasting when land
should be secured, detailed design should be undertaken, and construction could
commence. As such, there have been no funding from grants or subsidies assumed in
the financial analysis.
3.3 Property Taxes
Property taxes continue to be a source of revenue for both capital and operating
expenditures related to parks, recreation, and culture services, as other funding tools do
not provide full cost recovery for the Municipality. The amount of tax paid is based on
the assessed value of property and the tax rate applied.
It is recommended that the Municipality maximize all other funding sources available for
recovery of capital and operating expenses, and utilize property taxes for costs that
cannot be recovered through other tools.
3.3.1 Tax Increment Financing
Tax Increment Financing (TIF) programs typically use future incremental property tax
revenues received from development or redevelopment of land to offset the upfront
costs of the development or redevelopment. When provided to a developing
Watson & Associates Economists Ltd. PAGE 19
Financial Analysis Report
property/landowner, this reduces the additional property taxes received by the
municipality, once the development or redevelopment is complete, for a period of time.
If the Municipality wished to internally allocate the incremental property tax revenues
received from development or redevelopment, for the purposes of providing funding for
parks, recreation, and/or cultural services, they could do so through the budget process.
The Municipality could use the tax increment revenues to assist in financing the
purchase of land for future parkland that is needed in excess of what can be achieved
through the provision in the Planning Act for parkland conveyance/P.I.L. They could
also allocate a portion of the tax increment revenues to assist in providing additional
recreation and/or cultural needs for amounts in excess of what can be recovered
through D.C. and/or C.B.C.s.
3.4 User Fees
The Part XII of the Municipal Act provides municipalities and local boards with broad
powers to impose fees and charges through the passage of a by -law. User fees for
parks, recreation, and cultural services, are currently used by the Municipality. The
powers, as presented in s.391 (1), provide the following for imposing fees or charges:
• “for services or activities provided or done by or on behalf of it;
• for costs payable by it for services or activities provided or done by or on behalf
of any other municipality or any local board; and
• for the use of its property including property under its control.”
This section of the Municipal Act provides municipalities with a source of funding for
operating and programing costs for parks, recreation, and culture. The costs included in
a fee or charge may include costs incurred by the municipality or local board related to
administration, enforcement, and the establishment, acquisition, and replacement of
capital assets. Further, a fee or charge imposed for capital costs related to services or
activities may be imposed on persons not receiving an immediate benefit from the
services or activities but who will receive a benefit at some point in time.
It should be noted that in applying Section 391 of the Municipal Act for the recovery of
capital costs a municipality must have regard for the associated regulation, O. Reg.
584/06. Section 2(1) of the regulation indicates that a fee under the Act cannot be
imposed to recover capital costs that are also included in a development charge or
Watson & Associates Economists Ltd. PAGE 20
Financial Analysis Report
front-ending agreement which is in effect before the composition of the fee. This clause
is provided to avoid a duplication of fees and charges for the same works. As the costs
being considered parks and recreation fees are predominantly for operating co sts, and
capital-related costs related to replacement capital needs which are ineligible for
funding under the D.C.A., no duplication in cost recovery currently exists.
It is noted that the scope of the Master Plan does not include a review or update to the
Municipality’s user fees. A user fee review is not typically undertaken as part of a
Master Plan. Often, the best time to undertake a user fee review is when new programs
are being made available and/or when new facilities and services are being offered.
Many municipalities undertake user fees on a cyclical basis (e.g., once every 5 years).
The Municipality should determine the best time to undertake an update to th eir user
fees through a separate undertaking based on their specific needs. As such, user fee
revenue has not been included in the financial analysis.
4. Financial Analysis – Cashflow Analysis
A cashflow analysis has been undertaken based on the identified capital needs over the
2024-2036 forecast period. To estimate the revenues to be recovered through D.C.s,
the Municipality’s current D.C. rates were applied to the anticipated growth over the
forecast period. Further, it is recognized that the Municipality has funding in the current
D.C. reserve funds for Parks and Recreation, and Library Services, however, it is
unknown if these funds are available for Master Plan projects or already intende d to
fund other projects identified in the previous D.C. study. Therefore, it is assumed that
these funds are not available to assist in funding the Master Plan capital program.
However, if any of the current D.C. reserve funds are available, they would reduce the
need for other funding sources to be utilized (e.g., debt, taxes, etc.).
As the Municipality does not currently impose C.B.C.s, no funding from this funding tool
has been forecasted for the cashflow analysis. Further, the uncommitted balance in the
parkland dedication reserve fund at the beginning of 2024 has been included. B ased on
the analysis contained in section 2.3 herein, it is recommended that the Municipality
uses the parkland conveyance provisions of the Planning Act to maximize the amount of
land that can be achieved to meet the parkland needs. As such, the cashflow analysis
has not considered additional P.I.L. funding over the forecast, although it is recognized
that there will be instances that P.I.L. funding will be recovered due to a lack of land
available for conveyance on certain properties (i.e., such as with redevelopments and
Watson & Associates Economists Ltd. PAGE 21
Financial Analysis Report
smaller developments proceeding through the site plan approval process). Table 1 3
provides a summary of the anticipated revenues over the short -term, medium-term, and
long-term forecast periods.
Table 13
Anticipated Revenues
2024$
The cashflow analysis has embraced the estimated capital costs, including the higher
estimated costs for amenities such as outdoor rectangular fields, ball diamonds, cricket
fields, outdoor tennis courts, and outdoor pickleball courts (as identified in Tab le 1).
Although some of these items will not all proceed as lit amenities, costing them at the
higher values for the cashflow analysis, assumes that any cost savings achieved when
construction unlit amenities will provide additional room for other ameniti es that have
not been identified at this time. Table 14 provides a summary of the anticipated
expenditures over for the forecast periods.
For each capital asset, an assumption related to the growth-related percentage has
been made to assess the potential recovery through D.C.s once the capital has been
included in a future D.C. study. It is noted that these percentages will need to be
confirmed during the Municipality’s next D.C. study, where further refin ements to costs,
size of facilities, and growth-shares are further detailed.
2024-2028 2029-2033 2034-2036
Development Charges:
Parks and Recreation $96,961,731 $47,828,085 $14,798,536 $161,970,235
Library $12,716,914 $6,270,168 $1,940,093 $22,878,671
Community Benefits Charges*$0 $0 $0 $0
Parkland Dedication Reserve Fund $0 $0 $0 $3,269,277
Total Revenues $109,678,645 $54,098,254 $16,738,630 $188,118,184
Collections
TotalRevenue from Growth Funding Tools
*As the Municipality does not currently have a C.B.C. it is unknown if a future C.B.C. by-law would be enacted and if it
would include costs associated with Parks, Recreation, and Cultural services.
Watson & Associates Economists Ltd. PAGE 22
Financial Analysis Report
Table 14
Anticipated Expenditures
2024$
Expenses
Assumed D.C.
Recoverable
Share (%)
2024-2028 2029-2033 2034-2036 Total
Parks and Recreation
Arenas (Ice Pads)100%$0 $59,062,500 $0 $59,062,500
Indoor Aquatic Centre 100%$29,687,500 $0 $0 $29,687,500
Multi-Purpose Space / Group Fitness Space 100%$0 $5,250,000 $0 $5,250,000
Indoor Walking Track 100%$0 $2,250,000 $0 $2,250,000
Outdoor Rectangular Fields 100%$4,200,000 $3,500,000 $3,325,000 $11,025,000
Ball Diamonds 100%$1,400,000 $2,400,000 $2,100,000 $5,900,000
Cricket Fields 100%$500,000 $500,000
Outdoor Tennis Courts 100%$2,160,000 $1,440,000 $480,000 $4,080,000
Outdoor Pickleball Courts 100%$2,100,000 $600,000 $600,000 $3,300,000
Basketball Courts 100%$300,000 $300,000 $400,000 $1,000,000
Outdoor Splash Pads 100%$3,000,000 $2,000,000 $2,000,000 $7,000,000
Cooling stations 100%$0 $0 $700,000 $700,000
Small-Scale Skate Zones 100%$100,000 $200,000 $300,000 $600,000
Leash-Free Dog Parks 100%$140,000 $0 $0 $140,000
Compact Leash-Free Dog Parks 100%$0 $0 $200,000 $200,000
Community Gardens 100%$0 $0 $175,000 $175,000
Outdoor Fitness Equipment 100%$200,000 $200,000 $400,000 $800,000
Playgrounds 100%$4,000,000 $4,000,000 $4,000,000 $12,000,000
Studies & Other Additional Needs
Park Renewal Strategy 50%$150,000 $0 $0 $150,000
Trail development 100%$6,000,000 $7,500,000 $4,500,000 $18,000,000
Darlington Sports Centre BCA 10%$30,000 $0 $0 $30,000
Indoor aquatic centre - South Bowmanville
Recreation Centre (SBRC) (Additional Funding to
be added to the existing conceptual work)100%$25,000 $0 $0 $25,000
Alan Strike Aquatic Centre and Squash Courts
(ASASC) Feasibility Study 10%$0 $35,000 $0 $35,000
Courtice Community Complex feasibility study for
indoor aquatic centre 50%$0 $0 $150,000 $150,000
Cost for facility enhancements to community halls 25%$600,000 $750,000 $450,000 $1,800,000
Orono Pool capital renewal plan 10%$0 $25,000 $0 $25,000
Accessible Playground Distribution Strategy 33%$35,000 $0 $0 $35,000
Special Events and Festivals Strategy 25%$0 $80,000 $0 $80,000
Update Older Adult Strategy 75%$0 $80,000 $0 $80,000
Library
Library Space 100%$0 $37,750,000 $2,625,000 $40,375,000
Growth Studies & Other Needs
Feasibility studies for library spaces in:
Bowmanville 100%$0 $100,000 $0 $100,000
Courtice 100%$0 $0 $60,000 $60,000
Newcastle 100%$0 $0 $45,000 $45,000
Cost to establish bookmobile 100%$150,000 $0 $0 $150,000
CLMA Technology Strategy 60%$0 $30,000 $0 $30,000
Provision for Additional Collection Materials 100%$50,000 $5,800,000 $400,000 $6,250,000
Other
Master Plan five year review 68%$0 $250,000 $0 $250,000
Visual Arts Centre feasibility study 0%$40,000 $0 $0 $40,000
Performing Arts Centre feasibility study 0%$0 $150,000 $0 $150,000
Cost for creating a centralized heritage hub in
Bowmanville - Relocation of Clarke Schoolhouse 0%$100,000 $0 $0 $100,000
Parkland Acquisition 0%$61,310,000 $61,310,000 $36,780,000 $159,400,000
Parkland Development 100%$5,564,300 $5,286,400 $3,087,800 $13,938,500
Total Expenses $121,841,800 $200,348,900 $62,777,800 $384,968,500
Watson & Associates Economists Ltd. PAGE 23
Financial Analysis Report
Table 15 provides a summary of the expenses provided in Table 15 based on a service
category basis.
Table 15
Anticipated Expenditures by Service Category
2024$
Based on the assumptions provided in Tables 13 through 15, the cashflow analysis is
summarized in Table 16 provides based on the short-term, medium-term, and long-term
time horizons.
Table 16
Cashflow Analysis
2024$
Based on the findings of the cashflow analysis, it is anticipated that the Municipality will
require debenture financing over the forecast period if other funding sources are not
available. As such, it is recommended that the Municipality, update their D.C. rates to
embrace the capital needs identified through the Master Plan, where applicable,
Service Category 2024-2028 2029-2033 2034-2036 Total
Parks and Recreation D.C. Costs $59,616,396 $94,388,963 $22,455,300 $176,460,658
Parkland Acquisition Costs $61,310,000 $61,310,000 $36,780,000 $159,400,000
Library D.C. Costs $200,000 $43,710,188 $3,130,000 $47,040,188
Non-D.C. Eligible Costs $715,404 $939,750 $412,500 $2,067,654
Total Expenses $121,841,800 $200,348,900 $62,777,800 $384,968,500
Expense/Revenue 2024-2028 2029-2033 2034-2036 Total
Parks and Recreation
D.C. Eligible Expenses $59,616,396 $94,388,963 $22,455,300 $176,460,658
D.C. Revenues from Incremental Growth $96,961,731 $47,828,085 $14,798,536 $159,588,352
Surplus/(Deficit)$37,345,335 ($46,560,877) ($7,656,764) ($16,872,306)
Library
D.C. Eligible Expenses $200,000 $43,710,188 $3,130,000 $47,040,188
D.C. Revenues from Incremental Growth $12,716,914 $6,270,168 $1,940,093 $20,927,175
Surplus/(Deficit)$12,516,914 ($37,440,019) ($1,189,907) ($26,113,012)
Parkland Acquisition
P.I.L. Elgiible Expenses $61,310,000 $61,310,000 $36,780,000 $159,400,000
Parkland Dedication Reserve Fund $3,269,277 $3,269,277
Surplus/(Deficit)($58,040,723) ($61,310,000) ($36,780,000) ($156,130,723)
Other
Non-D.C. Eligible Expenses $715,404 $939,750 $412,500 $2,067,654
Surplus/(Deficit)($715,404) ($939,750) ($412,500) ($2,067,654)
Funding Required from Other Sources ($45,052,972)
Watson & Associates Economists Ltd. PAGE 24
Financial Analysis Report
consider parks, recreation, and cultural needs through a C.B.C. strategy, to ensure they
are able to maximize the amount of parkland that can be conveyed, and seek out lands
to purchase for parkland purposes, at reasonable prices, when available. Further, the
Municipality should track the actual growth taking place and annually, at budget time,
adjust the timing of projects to ensure they are being put in place to meet the needs of
actual growth. Further, the Municipality may consider entering into agreem ents (i.e.,
front-ending agreements) with developing landowners to fully develop smaller parks,
such as parkettes and urban squares, and/or neighbourhood parks, when they are
developing subdivisions. Utilizing the available funding tools for recovery of capital
costs, to the greatest extent possible, will reduce the Municipality’s reliance on property
taxes and or long-term debt as the Master Plan is implemented.
5. Operating Impacts
5.1 Facilities and Outdoor Amenities
With the addition of new parks, recreation, and cultural facilities, amenities, and lands,
the Municipality will be faced with additional operating costs associated with staffing,
maintenance, utility costs, etc. Furthermore, once assets are in place, they will need to
be embraced in future asset management plans to ensure they are scheduled for
replacement over their life span.
An analysis has been undertaken to assess the operating impacts of the capital
infrastructure identified herein. As part of this analysis, it was deemed necessary to
isolate the incremental operating expenditures directly associated with these capital
projects, and prorate the cost on a per unit basis (i.e., sq.ft. of building space, per item,
etc.). This was undertaken through a review of the Municipality’s approved 2022
Financial Information Return (F.I.R.) and the Municipality’s 2023 Budget. As some of
the costing associated with specific facilities were available through the 2023 budget,
those costs have been used (e.g., for incremental costs of new libraries, new developed
parks, etc.). As the sizes of the new indoor recreation facilities have not been
determined within the Master Plan, as they will differ depending on the amenities
included in each, the F.I.R. data was utilized. Further, for operating costs associated
with the new library bookmobile, information from other municipalities with bookmobile
vehicles was used.
Watson & Associates Economists Ltd. PAGE 25
Financial Analysis Report
Table 17 provides a summary of the incremental annual operating costs for Library
facilities and the bookmobile. Table 18 provides the anticipated incremental costs
related to parks operations, and Table 19 provides a summary of all incremental costs
related to parks, recreation, and cultural facilities and amenities identified in the Master
Plan. The operating impacts assessment assumes all asset are in place over the
forecast period.
Table 17
Incremental Annual Operating Costs for Library Facilities and Bookmobile
2024$
Table 18
Incremental Annual Operating Costs for Parks
2024$
Library Facilities
Size of
Facility
(sq.ft.)
Total
Expenses
(2023$)
Total
Inflated
Expenses
(2024$)
Expense
per sq.ft./
bookmobile
Size of New
Facilities/# of
Bookmobiles
Incremental
Annual
Operating
Costs
Library Facilities*45,100 $3,786,052 $3,967,524 $88 32,300 $2,841,486
Bookmobile**$50,000 1 $50,000
Average Cost Per sq.ft.45,100 $3,786,052 $3,967,524 $2,891,486
*Based on 2023 Budget
**Based on average cost of bookmobiles in other municipalities
Parks Operations
Existing
Acres of
Parks
Total
Expense
(2023$)
Total
Inflated
Expenses
(2024$)
Expense
per Acre
Additional
Acres of
Parkland
Incremental
Annual
Operating
Costs
Existing*220 $4,719,797 $4,946,025 $22,482
Growth from Potential Maximum Conveyance 46.0 $1,033,571
Additional Growth Needs Per Master Plan 59.3 $1,333,326
Total 220 $4,719,797 $4,946,025 $21,454 105.3 $2,366,898
*Based on 2023 Budget
Watson & Associates Economists Ltd. PAGE 26
Financial Analysis Report
Table 19
Summary of Incremental Annual Operating Costs, Parks, Recreation, and Culture
Facilities, Amenities, and Parks Operations
2024$
In addition to the operational impacts, over time the initial capital projects will require
replacement. This asset replacement of capital is often referred to as lifecycle cost
and/or asset management. By definition, lifecycle costs are all the costs that are
incurred during the life of a physical asset, from the time of its acquisition to the time it is
taken out of service for disposal or redeployment. Lifecycle costs were estimated based
on the average useful life of like assets as identified in the Municipality’s 2024 Asset
Management Plan (See Table 20).
SERVICE INCREMENTAL
GROSS COST
ANNUAL
OPERATING
EXPENDITURES
1.Parks and Recreation Services
1.1 Park development, amenities, and trails
65,420,000 2,366,898
1.2 Recreation Facilities*
98,050,000 8,850,074
2.Library Services
2.1 Library facilities
40,375,000 2,841,486
2.2 Library materials
6,250,000 -
2.3 Library vehicles
150,000 50,000
Total $210,245,000 $14,108,458
* Based on 2022 F.I.R., inflated to 2024$
Watson & Associates Economists Ltd. PAGE 27
Financial Analysis Report
Table 20
Useful Life Assumptions
2024$
For the purposes of undertaking the asset management impacts, the capital costs have
been spread over the forecast period from 2025 -2036 (see Table 21).
Lifecycle costs for the capital infrastructure have been presented based on a sinking
fund basis. The assets have been considered over their estimated useful lives. The
resultant total annualized expenditures are anticipated to be $11.43 million once all
assets are in place (see Table 22). Note that it is assumed, that asset management
requirements will not start until the year after the assets are in place.
A summary of the operating and asset management impacts is presented in Table 23,
in 2024 values.
Asset
Average
Useful Life
Facilities 50
Outdoor Rectangular Fields 25
Ball Diamonds 25
Cricket Fields 25
Outdoor Tennis Courts, Pickleball Courts &
Basketball Courts 20
Outdoor Splash Pads & Cooling Stations 20
Small-Scale Skate Zones 25
Dog Parks 25
Community Gardens 25
Outdoor Fitness Equipment & Playgrounds 15
Trails 20
Parkland Development & Site Works 25
Library Collection Materials and Bookmobile 15
Watson & Associates Economists Ltd. PAGE 28
Financial Analysis Report
Table 21
Estimated Timing of Capital Needs for Asset Management Impacts
2024$
From To 2025 2026 2027 2028 2029 2030 2031 2032 2033 2034 2035 2036
Arenas (Ice Pads)Recreation Facilities 2029 2033 50 59,062,500 - - - - 11,812,500 11,812,500 11,812,500 11,812,500 11,812,500 - - -
Indoor Aquatic Centre Recreation Facilities 2024 2028 50 29,687,500 5,937,500 5,937,500 5,937,500 5,937,500 - - - - - - - -
Multi-Purpose Space / Group Fitness Space Recreation Facilities 2029 2033 50 5,250,000 - - - - 1,050,000 1,050,000 1,050,000 1,050,000 1,050,000 - - -
Indoor Walking Track Recreation Facilities 2029 2033 50 2,250,000 - - - - 450,000 450,000 450,000 450,000 450,000 - - -
Outdoor Rectangular Fields Park development, amenities, and trails 2024 2028 25 4,200,000 840,000 840,000 840,000 840,000 - - - - - - - -
Outdoor Rectangular Fields Park development, amenities, and trails 2029 2033 25 3,500,000 - - - - 700,000 700,000 700,000 700,000 700,000 - - -
Outdoor Rectangular Fields Park development, amenities, and trails 2034 2036 25 3,325,000 - - - - - - - - - 1,108,333 1,108,333 1,108,333
Ball Diamonds Park development, amenities, and trails 2024 2028 25 1,400,000 280,000 280,000 280,000 280,000 - - - - - - - -
Ball Diamonds Park development, amenities, and trails 2029 2033 25 2,400,000 - - - - 480,000 480,000 480,000 480,000 480,000 - - -
Ball Diamonds Park development, amenities, and trails 2034 2036 25 2,100,000 - - - - - - - - - 700,000 700,000 700,000
Cricket Fields Park development, amenities, and trails 2024 2028 25 500,000 100,000 100,000 100,000 100,000 - - - - - - - -
Outdoor Tennis Courts Park development, amenities, and trails 2024 2028 20 2,160,000 432,000 432,000 432,000 432,000 - - - - - - - -
Outdoor Tennis Courts Park development, amenities, and trails 2029 2033 20 1,440,000 - - - - 288,000 288,000 288,000 288,000 288,000 - - -
Outdoor Tennis Courts Park development, amenities, and trails 2034 2036 20 480,000 - - - - - - - - - 160,000 160,000 160,000
Outdoor Pickleball Courts Park development, amenities, and trails 2024 2028 20 2,100,000 420,000 420,000 420,000 420,000 - - - - - - - -
Outdoor Pickleball Courts Park development, amenities, and trails 2029 2033 20 600,000 - - - - 120,000 120,000 120,000 120,000 120,000 - - -
Outdoor Pickleball Courts Park development, amenities, and trails 2034 2036 20 600,000 - - - - - - - - - 200,000 200,000 200,000
Basketball Courts Park development, amenities, and trails 2024 2028 20 300,000 60,000 60,000 60,000 60,000 - - - - - - - -
Basketball Courts Park development, amenities, and trails 2029 2033 20 300,000 - - - - 60,000 60,000 60,000 60,000 60,000 - - -
Basketball Courts Park development, amenities, and trails 2034 2036 20 400,000 - - - - - - - - - 133,333 133,333 133,333
Outdoor Splash Pads Park development, amenities, and trails 2024 2028 20 3,000,000 600,000 600,000 600,000 600,000 - - - - - - - -
Outdoor Splash Pads Park development, amenities, and trails 2029 2033 20 2,000,000 - - - - 400,000 400,000 400,000 400,000 400,000 - - -
Outdoor Splash Pads Park development, amenities, and trails 2034 2036 20 2,000,000 - - - - - - - - - 666,667 666,667 666,667
Cooling stations Park development, amenities, and trails 2034 2036 20 700,000 - - - - - - - - - 233,333 233,333 233,333
Small-Scale Skate Zones Park development, amenities, and trails 2024 2028 25 100,000 20,000 20,000 20,000 20,000 - - - - - - - -
Small-Scale Skate Zones Park development, amenities, and trails 2029 2033 25 200,000 - - - - 40,000 40,000 40,000 40,000 40,000 - - -
Small-Scale Skate Zones Park development, amenities, and trails 2034 2036 25 300,000 - - - - - - - - - 100,000 100,000 100,000
Leash-Free Dog Parks Park development, amenities, and trails 2024 2028 25 140,000 28,000 28,000 28,000 28,000 - - - - - - - -
Compact Leash-Free Dog Parks Park development, amenities, and trails 2034 2036 25 200,000 - - - - - - - - - 66,667 66,667 66,667
Community Gardens Park development, amenities, and trails 2034 2036 25 175,000 - - - - - - - - - 58,333 58,333 58,333
Outdoor Fitness Equipment Park development, amenities, and trails 2024 2028 15 200,000 40,000 40,000 40,000 40,000 - - - - - - - -
Outdoor Fitness Equipment Park development, amenities, and trails 2029 2033 15 200,000 - - - - 40,000 40,000 40,000 40,000 40,000 - - -
Outdoor Fitness Equipment Park development, amenities, and trails 2034 2036 15 400,000 - - - - - - - - - 133,333 133,333 133,333
Playgrounds Park development, amenities, and trails 2024 2028 15 4,000,000 800,000 800,000 800,000 800,000 - - - - - - - -
Playgrounds Park development, amenities, and trails 2029 2033 15 4,000,000 - - - - 800,000 800,000 800,000 800,000 800,000 - - -
Playgrounds Park development, amenities, and trails 2034 2036 15 4,000,000 - - - - - - - - - 1,333,333 1,333,333 1,333,333
Trail development Park development, amenities, and trails 2024 2028 20 6,000,000 1,200,000 1,200,000 1,200,000 1,200,000 - - - - - - - -
Trail development Park development, amenities, and trails 2029 2033 20 7,500,000 - - - - 1,500,000 1,500,000 1,500,000 1,500,000 1,500,000 - - -
Trail development Park development, amenities, and trails 2034 2036 20 4,500,000 - - - - - - - - - 1,500,000 1,500,000 1,500,000
Cost for facility enhancements to community hallsRecreation Facilities 2024 2028 50 600,000 120,000 120,000 120,000 120,000 - - - - - - - -
Cost for facility enhancements to community hallsRecreation Facilities 2029 2033 50 750,000 - - - - 150,000 150,000 150,000 150,000 150,000 - - -
Cost for facility enhancements to community hallsRecreation Facilities 2034 2036 50 450,000 - - - - - - - - - 150,000 150,000 150,000
Parkland Development Park development, amenities, and trails 2024 2028 25 61,310,000 12,262,000 12,262,000 12,262,000 12,262,000 - - - - - - - -
Parkland Development Park development, amenities, and trails 2029 2033 25 61,310,000 - - - - 12,262,000 12,262,000 12,262,000 12,262,000 12,262,000 - - -
Parkland Development Park development, amenities, and trails 2034 2036 25 36,780,000 - - - - - - - - - 12,260,000 12,260,000 12,260,000
Library
Library Space Library facilities 2029 2033 50 37,750,000 - - - - 7,550,000 7,550,000 7,550,000 7,550,000 7,550,000 - - -
Library Space Library facilities 2034 2036 50 2,625,000 - - - - - - - - - 875,000 875,000 875,000
Cost to establish bookmobile Library vehicles 2024 2028 15 150,000 30,000 30,000 30,000 30,000 - - - - - - - -
Provision for Additional Collection Materials Library materials 2024 2028 15 50,000 10,000 10,000 10,000 10,000 - - - - - - - -
Provision for Additional Collection Materials Library materials 2029 2033 15 5,800,000 - - - - 1,160,000 1,160,000 1,160,000 1,160,000 1,160,000 - - -
Provision for Additional Collection Materials Library materials 2034 2036 15 400,000 - - - - - - - - - 133,333 133,333 133,333
Total Capital Expenditures $369,645,000 $23,179,500 $23,179,500 $23,179,500 $23,179,500 $38,862,500 $38,862,500 $38,862,500 $38,862,500 $38,862,500 $19,811,665 $19,811,665 $19,811,665
Gross Cost
(2024$)
Forecast (2024$)
Description Service Area
Project Timing
Useful
Life
Watson & Associates Economists Ltd. PAGE 29
Financial Analysis Report
Table 22
Asset Management Impacts
2024$
2025 2026 2027 2028 2029 2030 2031 2032 2033 2034 2035 2036 Total
Lifecycle Contributions (Incremental)
Arenas (Ice Pads)- - - - - 612,264 612,264 612,264 612,264 612,264 - - 3,061,320
Indoor Aquatic Centre - 307,752 307,752 307,752 307,752 - - - - - - - 1,231,008
Multi-Purpose Space / Group Fitness Space - - - - - 54,423 54,423 54,423 54,423 54,423 - - 272,115
Indoor Walking Track - - - - - 23,324 23,324 23,324 23,324 23,324 - - 116,620
Outdoor Rectangular Fields - 54,910 54,910 54,910 54,910 - - - - - - - 219,640
Outdoor Rectangular Fields - - - - - 45,758 45,758 45,758 45,758 45,758 - - 228,790
Outdoor Rectangular Fields - - - - - - - - - - 72,450 72,450 144,900
Ball Diamonds - 18,303 18,303 18,303 18,303 - - - - - - - 73,212
Ball Diamonds - - - - - 31,377 31,377 31,377 31,377 31,377 - - 156,885
Ball Diamonds - - - - - - - - - - 45,758 45,758 91,516
Cricket Fields - 6,537 6,537 6,537 6,537 - - - - - - - 26,148
Outdoor Tennis Courts - 32,112 32,112 32,112 32,112 - - - - - - - 128,448
Outdoor Tennis Courts - - - - - 21,408 21,408 21,408 21,408 21,408 - - 107,040
Outdoor Tennis Courts - - - - - - - - - - 11,893 11,893 23,786
Outdoor Pickleball Courts - 31,220 31,220 31,220 31,220 - - - - - - - 124,880
Outdoor Pickleball Courts - - - - - 8,920 8,920 8,920 8,920 8,920 - - 44,600
Outdoor Pickleball Courts - - - - - - - - - - 14,867 14,867 29,734
Basketball Courts - 4,460 4,460 4,460 4,460 - - - - - - - 17,840
Basketball Courts - - - - - 4,460 4,460 4,460 4,460 4,460 - - 22,300
Basketball Courts - - - - - - - - - - 9,911 9,911 19,822
Outdoor Splash Pads - 44,600 44,600 44,600 44,600 - - - - - - - 178,400
Outdoor Splash Pads - - - - - 29,733 29,733 29,733 29,733 29,733 - - 148,665
Outdoor Splash Pads - - - - - - - - - - 49,556 49,556 99,112
Cooling stations - - - - - - - - - - 17,344 17,344 34,688
Small-Scale Skate Zones - 1,307 1,307 1,307 1,307 - - - - - - - 5,228
Small-Scale Skate Zones - - - - - 2,615 2,615 2,615 2,615 2,615 - - 13,075
Small-Scale Skate Zones - - - - - - - - - - 6,537 6,537 13,074
Leash-Free Dog Parks - 1,830 1,830 1,830 1,830 - - - - - - - 7,320
Compact Leash-Free Dog Parks - - - - - - - - - - 4,358 4,358 8,716
Community Gardens - - - - - - - - - - 3,813 3,813 7,626
Outdoor Fitness Equipment - 3,604 3,604 3,604 3,604 - - - - - - - 14,416
Outdoor Fitness Equipment - - - - - 3,604 3,604 3,604 3,604 3,604 - - 18,020
Outdoor Fitness Equipment - - - - - - - - - - 12,012 12,012 24,024
Playgrounds - 72,072 72,072 72,072 72,072 - - - - - - - 288,288
Playgrounds - - - - - 72,072 72,072 72,072 72,072 72,072 - - 360,360
Playgrounds - - - - - - - - - - 120,120 120,120 240,240
Trail development - 89,200 89,200 89,200 89,200 - - - - - - - 356,800
Trail development - - - - - 111,500 111,500 111,500 111,500 111,500 - - 557,500
Trail development - - - - - - - - - - 111,500 111,500 223,000
Cost for facility enhancements to community halls - 6,220 6,220 6,220 6,220 - - - - - - - 24,880
Cost for facility enhancements to community halls - - - - - 7,775 7,775 7,775 7,775 7,775 - - 38,875
Cost for facility enhancements to community halls - - - - - - - - - - 7,775 7,775 15,550
Library
Library Space - - - - - 391,330 391,330 391,330 391,330 391,330 - - 1,956,650
Library Space - - - - - - - - - - 45,353 45,353 90,706
Cost to establish bookmobile - 2,703 2,703 2,703 2,703 - - - - - - - 10,812
Provision for Additional Collection Materials - 901 901 901 901 - - - - - - - 3,604
Provision for Additional Collection Materials - - - - - 104,505 104,505 104,505 104,505 104,505 - - 522,525
Provision for Additional Collection Materials - - - - - - - - - - 12,012 12,012 24,024
Total Lifecycle Contributions - $677,731 $677,731 $677,731 $677,731 $1,525,068 $1,525,068 $1,525,068 $1,525,068 $1,525,068 $545,259 $545,259 $11,426,782
Inflated ForecastLifecycle Analysis
(Independent Annual Impact)
Watson & Associates Economists Ltd. PAGE 30
Financial Analysis Report
Table 23
Summary of Operating Impacts and Asset Management Impacts
2024$
It is noted, that as capital assets are schedule for completion, the Municipality should
identify the operating expenditures and asset management impacts and adjust annual
budgets, as required.
As noted in section 3.4, the Master Plan does not include a review or update to the
Municipality’s user fees. A user fee review is not typically undertaken as part of a
Master Plan. However, as new capital infrastructure is completed and becomes
available for programming, rentals, etc., the Municipality should review their user fees to
ensure that operating expenditures can be offset by fees from those that will be using
the facilities and programmable amenities, to the extent possible. This will reduce the
need to offset the operating costs with property tax revenues.
5.2 Studies
It is anticipated that studies will be undertaken either in-house by existing staff or
external consultants with the oversight of existing staff, and therefore, additional
operating impacts have not been assessed. Further, as studies are not a tangible
capital asset, they are not considered through asset management plan requirements.
SERVICE INCREMENTAL
GROSS COST
ANNUAL LIFECYCLE
EXPENDITURES
ANNUAL
OPERATING
EXPENDITURES
TOTAL ANNUAL
EXPENDITURES
1.Parks and Recreation Services
1.1 Park development, amenities, and trails
65,420,000 4,058,093 2,366,898 6,424,991
1.2 Recreation Facilities*
98,050,000 4,760,368 8,850,074 13,610,442
2.Library Services
2.1 Library facilities
40,375,000 2,047,356 2,841,486 4,888,842
2.2 Library materials
6,250,000 550,153 - 550,153
2.3 Library vehicles
150,000 10,812 50,000 60,812
Total $210,245,000 $11,426,782 $14,108,458 $25,535,240
* Based on 2022 F.I.R., inflated to 2024$
Watson & Associates Economists Ltd. PAGE 31
Financial Analysis Report
6. Observations and Recommendations
6.1 Parkland Observations and Recommendations
Due to the shortfall in the amount of parkland that the Planning Act provisions will
provide the Municipality, it is recommended that P.I.L. of parkland revenues not be used
for indoor recreation facilities, as the cost of land can be recovered through D.C.s for
these facilities, to ensure the parkland is available to develop parks and outdoor
recreation needs.
It is also recommended that the Municipality invest in land purchases in strategic
locations, potentially just outside the current urban boundaries and/or in hamlets,
sooner than later, when vacant lands become available for sale at lower costs (i.e., at
unserviced land values and/or agricultural land values). Otherwise, investing the funds
in the special parkland fund should follow the investment practices of the Municipality.
However, due to the requirements of the Planning Act, (i.e., spending or allocating a
minimum of 60% of the opening reserve fund balance each year to eligible capital
projects), long-term investment opportunities may be limited.
The Municipality should confirm through future D.C. study processes, the amount and
costs of park development and associated amenities, which may be in excess of
historical service standard ceilings (i.e., a required test imposed by the D.C.A.), and
ensure that infrastructure is being emplaced in time to keep pace with growth. This will
mitigate further restrictions in future D.C. studies based on limitations in the D.C.A. and
ensure that current services levels are maintained over the forecast period.
It is recommended that the Municipality consider recovering costs for additional
parkland acquisition through a C.B.C. strategy.
The Municipality’s current Parkland By-law 2023-042 already allows the Municipality to
recover the maximum amount of land allowable under the Planning Act provisions.
However, there have been changes to the Planning Act that override the current by-law,
requiring the Municipality to exclude the portion of lands associated with affordable and
attainable residential units from the calculations of parkland requirements. Additionally,
amount of land that can be achieved has been capped for properties based on the size,
that the Municipality must adhere to. Therefore, it is recommended that the Parkland
by-law be revised through an amending by-law.
Watson & Associates Economists Ltd. PAGE 32
Financial Analysis Report
6.2 Other Observations and Recommendations
It is recommended that the Municipality:
• maximize all other funding sources available for recovery of capital and
operating expenses, and utilize property taxes for costs that cannot be
recovered through other tools;
• update their D.C. rates to embrace the capital needs identified through the
Master Plan, where applicable;
• consider parks, recreation, and cultural needs through a C.B.C. strategy ;
• seek out lands to purchase for parkland purposes, at reasonable prices, when
available;
• annually, track actual growth and, at budget time, adjust the timing of projects to
ensure capital infrastructure is being provided to meet the growth needs;
• consider entering into agreements (i.e., front-ending agreements) with
developing landowners to fully develop smaller parks, such as parkettes and
urban squares, and/or neighbourhood parks, when they are developing
subdivisions; and
• utilizing all available funding tools for recovery of capital costs, to the greatest
extent possible, to assist in implementing the Master Plan.