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Report To: General Government Committee
Date of Meeting: September 26, 2016
Report Number: OPD-009-16 Resolution:
File Number: By-law Number:
Report Subject: Outdoor Community Skating Rinks
Recommendations:
1.That Report OPD-009-16 be received for information;
2.That staff of the Operations Department be requested to formalize an outdoor community
skating rink standard operating procedure prior to this winter that will outline the application
and approval process for volunteers, staff responsibilities, volunteer responsibilities,
equipment to be supplied by the municipality and guidelines affecting liability and usage;
and
3.That staff include in the 2017 current budget submission an allocation of $1,500.00 for the
set-up of one volunteer based community skating rink.
Municipality of Clarington Report OPD-009-16
Report Overview
Periodic requests are received by Council and staff each winter to provide outdoor community
skating rinks. This report outlines the Operations Department current approach with respect to
this level of service and what improvement options are recommended for the future.
1. Background
Outdoor skating has historically been a fun activity for individuals and families alike to
participate in during the long winter months. Outdoor skating on natural ice, however,
requires a safe location, a properly maintained surface and also remains very dependent
on the presence of suitable weather patterns. Outdoor municipal skating rinks have not
existed in Clarington for many years due to their high demand on staff resources, the
wide availability of indoor ice across the municipality for public skating, the absence of a
dedicated volunteer base to create outdoor rinks and also the inconsistency of below
freezing winter temperatures. Although there has not been any approved outdoor skating
rinks in Clarington in recent years, the existing Parks By-law presently does allow for their
construction and operation by volunteers or community groups subject to specific terms
and conditions.
Ice Types
Outdoor skating can be accommodated on a number of different surfaces including
natural ice, artificial ice or synthetic ice.
Natural ice is the simplest form which can be constructed in most open space areas that
are reasonably level. Depending on the location selected, specific containment
measures are generally necessary and may include the installation of perimeter boards
or a berm, a plastic liner and/or the availability of a non-permeable surface. Other
requirements that are considered necessary to construct a quality outdoor ice skating
surface will include the availability of a water source, dedicated maintenance support,
adequate lighting levels and ultimately a prolonged forecast of cold winter weather.
While natural ice is present during the winter months on many of the storm water
management ponds that are now situated throughout Clarington, their use for skating is
strictly prohibited due to various safety issues. These safety concerns include the
overall depth of the ponds, the possibility of rapidly fluctuating water levels and the
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Report OPD-009-16 Page 3
tendency of the ponds to carry higher concentrations of chlorides that may weaken the
overall strength of the ice.
Similar to indoor ice facilities, artificial ice can be created in an outdoor setting when a
refrigeration plant is introduced to chill water to below the freeze point and to maintain
its state regardless of any fluctuation in the outdoor temperatures to above zero Celsius.
As might be expected, however, very significant costs are incurred with this type of ice
installation that includes the construction, operation and maintenance of the
refrigeration equipment and the associated staff time. For obvious reasons, outdoor
artificial ice facilities are also best situated in a purpose built location where refrigeration
plant equipment is available and proper services exist for maintenance that include a
dedicated water source and ice resurfacing equipment.
Synthetic Ice is a relatively new technology whereby large plastic panels are installed on
a flat stable surface. The self-lubricating interlocking panels can be fashioned into any
shape or size and are designed to somewhat replicate the effects of natural or artificial
ice although it’s reported that additional skating effort of approximately 15% is required
due to the friction that is encountered with the polymer surface. Although synthetic ice
is not susceptible to above zero temperatures it is not maintenance free as the panels
require periodic spraying with a glide enhancer and may also require regular cleaning
depending on the amount of exposure to dust and dirt. While synthetic ice can be used
outdoors it appears that it is much better suited to a controlled indoor application. Some
manufacturers recommend that when synthetic ice is not in use that it be covered with a
heavy tarp for protection purposes.
Experience from Neighbouring Municipalities
Many of the local municipalities within Durham Region and beyond have experienced
similar logistical and staffing challenges to provide community outdoor ice skating
facilities. W ith the exception of the City of Pickering and the Municipality of Port Hope,
all other municipalities in our immediate area only offer programs that support volunteer
based installations.
In the case of the City of Pickering, the municipality installs a 2800 square foot synthetic
ice surface on one of their neighbourhood tennis courts each winter. The synthetic ice
surface has only been received with limited success by the public and is not being
maintained to the recommended standards which ultimately could affect the longevity
and overall usefulness of the surface.
The Municipality of Port Hope presently constructs only one municipal natural ice
surface for outdoor skating each winter that is heavily supported by a group of
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Report OPD-009-16 Page 4
volunteers. Municipal staff are responsible for performing maintenance during regular
business hours while the community members provide all of the inspection and
maintenance requirements that are necessary after hours.
The municipalities of Ajax and Oshawa currently have programs in place that allow for
the set-up and operation of outdoor skating facilities by volunteers. In general, the
applications are received from volunteers that have managed outdoor skating facilities
for many years in those communities. For the future, the Town of Ajax has included
infrastructure in a large commercial/residential development presently under
construction at the intersection of Harwood Avenue and Bayly Street that will provide for
a municipally operated outdoor artificial ice surface.
The Town of Whitby currently does not have any type of municipal or volunteer
operated community outdoor skating programs in effect.
Options
As outlined above, consistently below freezing temperatures are necessary for the
development of natural ice for community skating rinks. Unfortunately, however, the
weather in Durham Region during many recent winters has not been conducive to such
initiatives. Based on historical background data Clarington received, on average, a total
of twenty five minus ten degree days between the years 2000 to 2009. (It has also
been reported in a future climate summary prepared by the Region of Durham that
during the 2040 to 2049 time horizon, there will be zero days in Clarington when the air
temperature will be less than minus ten degrees Celsius. Although the climate change
as suggested in the 2040 study is still more than two decades away there is already
evidence indicating that the general trend is towards higher temperatures, less snow
and more rain during the winter months.)
The option of staff setting-up and maintaining an outdoor community skating rink with
natural ice is not supported given these unpredictable weather patterns and the time,
costs and efforts that would be incurred to provide this service.
A more attractive option could be for volunteers or community groups to manage this
service under the general direction and assistance of municipal staff . Such an
approach reflects the practices of other municipalities throughout the Greater Toronto
Area. Volunteer support for this type of initiative would include the selection of an
appropriate site, the provision of training on how to best construct and maintain a
natural ice surface and also where necessary the supply of materials such as perimeter
boards, a plastic liner, garden hoses, portable toilet(s), garbage cans, picnic tables,
signs, shovels, inspection forms and the provision of a municipal water source or where
appropriate a residential water rebate. It is estimated that the cost to provide the
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Report OPD-009-16 Page 5
necessary materials and staff time to assist with the set-up of each rink will be
approximately $1,500 a year. These funds are presently unbudgeted in the Operations
Department annual current budget. Trying this out in one location would permit us to
learn what works and what doesn’t without creating significant staff time and operating
costs.
Other alternatives as outlined in this report including a synthetic ice surface or the
construction of an artificial outdoor ice skating facility require significant capital for the
initial purchase, construction and start-up. The maintenance of these types of facilities
also require a large commitment of staff time that is not available within the
municipality’s existing compliment of resources. Consideration for these other types of
installations is therefore not supported at this time.
2. Concurrence
Not applicable.
3. Conclusion
Outdoor Skating Rinks can be considered important pieces of infrastructure in the
community where residents can gather to enjoy the outdoors and participate in an active
lifestyle. As part of the service levels that are offered by Clarington, municipa l staff
should be available to promote and assist with the set-up of outdoor skating rinks when
suitably requested by a group of volunteers.
Outdoor skating rinks are ideally situated in community parks with areas that are
relatively level, have limited encumbrances, provide adequate lighting, suitable access for
emergency vehicles, parking for vehicles, internal pathways and access to a water source
either from on-site municipal infrastructure or the home of an abutting volunteer.
(One example of this type of location would be the existing basketball court in Guildwood
Park in Bowmanville. At the time of development the basketball court was recessed into
the ground and specifically designed with the necessary infrastructure for the purpose of
being flooded during the winter months to create an outdoor skating rink. Other
community parks in Clarington that may also allow the easier formation of outdoor skating
rinks include Brookhouse Parkette in Newcastle, Pearce Farm Park in the Port of
Newcastle and Roswell Park in Courtice. Although it may be known that the circular
courtyard area in Rotary Park in Bowmanville may have similar design features it is not
considered an ideal location due to its relatively small size, limited availability of adjacent
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Report OPD-009-16 Page 6
volunteers and the presence of on-site hazards being the stone columns for the clock
tower and the park lighting poles.)
In an effort, therefore, to provide clear direction on this initiative staff should be requested
to develop a standard operating procedure that will outline the complete application and
approval process. Matters will be clearly addressed for such partnerships including
operational responsibilities specific to both volunteers and staff, equipment supplied by
the municipality and any safety, inspection, liability and usage guidelines.
4. Strategic Plan Application
Recommendations of this report support the Strategic Plan initiative to promote resident
engagement in our community.
Submitted by: Reviewed by:
Frederick J. Horvath Curry Clifford, MPA, CMO
Director of Operations Interim CAO
Staff Contact: Stephen Brake, Manager of Operations, 905-263-2291 or
sbrake@clarington.net