1. maintenance quality standards – parks and sports
fields normes de qualitÉ en matiÈre d’entretien des parcs et
des terrains de sport |
COMMITTEE RECOMMENDATIONS
That Council approve the
proposed Maintenance Quality Standards for Parks and Sports Fields as set out
in Annex B, subject to approval of the additional operating and capital funding
and 5 FTE requirements being added to the Surface Operations Parks and Sports
Fields 2006 Budget requirements as follows:
1.
An ongoing operating pressure of $260,000 required to comply with
the Canadian Safety Association’s Guideline on Children’s Play Spaces and
Equipment including 3.7 FTEs;
2.
An ongoing operating pressure of $250,000 to harmonize park turf
maintenance services;
3.
An ongoing operating pressure of $265,000 to harmonize basic park
maintenance services including 1.3 FTEs;
4.
An ongoing operating pressure of $200,000 to harmonize delivery of
the approved Integrated Turf Management Program;
5.
An ongoing operating pressure of $10,000 to provide maintenance to
select enhanced boulevard areas;
6.
That funding of $205,500 be allocated from the 2006 capital funding
envelopes for the acquisition of the vehicles and equipment identified in the
report.
The Committee approved the following direction to staff:
That staff be directed to provide Committee and Council, as part of
the 2006 budget deliberations, a continuum of performance outcomes and funding
options to enhance the maintenance of our parks, including sports fields and
other parks.
RECOMMANDATIONS DU
COMITÉ
Que le Conseil municipal approuve
les normes de qualité en matière d’entretien des parcs et des terrains de sport
proposées telles qu’elles sont indiquées à l’Annexe B, sous réserve de
l’approbation de fonds supplémentaires pour les dépenses d’immobilisations et
d’équipement ainsi que de l’ajout de 5 ETP nécessaires aux besoins du budget de
2006 de la Direction des opérations de surface alloué aux parcs et aux terrains
de sport comme suit :
1. Une pression continue de budget
de fonctionnement de 260 000 $ nécessaire pour respecter la directive
de l’Association canadienne de sécurité sur les espaces et les équipements de
jeux pour enfants, y compris 3,7 ÉTP;
2.
Une pression continue de budget de
fonctionnement de 250 000 $ nécessaire pour harmoniser les services
d’entretien des gazons des parcs;
3.
Une pression continue de budget de
fonctionnement de 265 000 $ nécessaire pour harmoniser les services
essentiels d’entretien des parcs, y compris 1,3 ÉTP;
4.
Une pression continue de budget de
fonctionnement de 200 000 $ nécessaire pour harmoniser la prestation
du programme de gestion intégrée des gazons;
5.
Une pression continue de budget de
fonctionnement de 10 000 $ afin d’assurer l’entretien de certains
terre-pleins mis en valeur;
6. Qu’un financement de
205 500 $ soit attribué à partir des enveloppes de budget de
fonctionnement de 2006 pour l’acquisition des véhicules et des équipements
désignés dans le rapport.
Le Comité a approuvé la directive au personnel suivante :
Que, dans le cadre des délibérations sur le budget de 2006, le personnel
soit enjoint de soumettre au Conseil municipal et au Comité un ensemble
homogène de résultats en matière de rendement et d’options de financement en
vue de l’amélioration de l’entretien de nos parcs, y compris les terrains de
sport et d’autres parcs.
DOCUMENTATION
1.
Acting Deputy City Manager, Public Works and Services report dated 13 October 2005
(ACS2005-PWS-SOP-0009).
2.
Extract
of Draft Minutes, 3 November 2005.
Report to/Rapport au :
Health, Recreation and Social
Services Committee
Comité de la santé, des loisirs et des
services sociaux
and Council / et au Conseil
13 October 2005 / le 13 octobre 2005
Submitted by/Soumis par : R.G. Hewitt,
Acting
Deputy City Manager/Directeur municipal adjoint intérimaire,
Public Works and Services/Services et Travaux publics
Contact Person/Personne
ressource: John Manconi, Acting Director/Directeur intérimaire
Surface Operations /Opérations de surface
(613) 580-2424 x 21110, John.Manconi@ottawa.ca
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OBJET: |
normes
de qualitÉ en matiÈre d’entretien des parcs et des terrains de sport |
REPORT RECOMMENDATION
That Health, Recreation and Social Services Committee
recommend that Council approve the proposed Maintenance Quality Standards for
Parks and Sports Fields as set out in Annex B, subject to approval of the
additional operating and capital funding and 5 FTE requirements being added to
the Surface Operations Parks and Sports Fields 2006 Budget requirements as follows:
1.
An ongoing operating pressure of $260,000 required to comply with
the Canadian Safety Association’s Guideline on Children’s Play Spaces and
Equipment including 3.7 FTEs;
2.
An ongoing operating pressure of $250,000 to harmonize park turf
maintenance services;
3.
An ongoing operating pressure of $265,000 to harmonize basic park
maintenance services including 1.3 FTEs;
4.
An ongoing operating pressure of $200,000 to harmonize delivery of
the approved Integrated Turf Management Program;
5.
An ongoing operating pressure of $10,000 to provide maintenance to
select enhanced boulevard areas;
6.
That funding of $205,500 be allocated from the 2006 capital funding
envelopes for the acquisition of the vehicles and equipment identified in the
report.
RECOMMANDATION DU RAPPORT
Que le Comité de la santé, des loisirs et des
services sociaux recommande au Conseil municipal d’approuver les normes de
qualité en matière d’entretien des parcs et des terrains de sport proposées
telles qu’elles sont indiquées à l’Annexe B, sous réserve de l’approbation de
fonds supplémentaires pour les dépenses d’immobilisations et d’équipement ainsi
que de l’ajout de 5 ETP nécessaires aux besoins du budget de 2006 de la
Direction des opérations de surface alloué aux parcs et aux terrains de sport
comme suit :
1.
Une pression continue de budget de
fonctionnement de 260 000 $ nécessaire pour respecter la directive de
l’Association canadienne de sécurité sur les espaces et les équipements de jeux
pour enfants, y compris 3,7 ÉTP;
2.
Une pression continue de budget de
fonctionnement de 250 000 $ nécessaire pour harmoniser les services
d’entretien des gazons des parcs;
3.
Une pression continue de budget de
fonctionnement de 265 000 $ nécessaire pour harmoniser les services
essentiels d’entretien des parcs, y compris 1,3 ÉTP;
4.
Une pression continue de budget de
fonctionnement de 200 000 $ nécessaire pour harmoniser la prestation
du programme de gestion intégrée des gazons;
5.
Une pression continue de budget de
fonctionnement de 10 000 $ afin d’assurer l’entretien de certains
terre-pleins mis en valeur;
6.
Qu’un financement de 205 500 $
soit attribué à partir des enveloppes de budget de fonctionnement de 2006 pour
l’acquisition des véhicules et des équipements désignés dans le rapport.
EXECUTIVE SUMMARY
Following the municipal amalgamation process
that brought together 12 municipal authorities providing similar road and park
maintenance services – all defined and delivered to varying levels across the
former jurisdictions - the Public Works and Services Department (PWS) commenced
the process of consolidating, rationalizing and harmonizing services by seeking
Council’s approval of the guiding principles for the harmonization process on
August 8, 2001.
The approved Service Level Harmonization
Strategy included the key elements of community and stakeholder consultation,
former jurisdictional service comparison and peer community review, development
of new maintenance classification systems, and development of relevant service
level standards.
In October 2002 the Department provided Council
with a Status Report highlighting progress on the harmonization process and in
2003, Council approved the Maintenance Quality Standards for Roads and
Sidewalks/Pathways.
The proposed Maintenance Quality Standards for Parks and Sports Fields, as well as Trees, was initially presented to Health, Recreation and Social Services (HRSS) Committee for approval in November 2004. HRSS Committee raised a number of questions during discussion. Given the degree of queries, Committee directed that this additional information be provided and that the Maintenance Quality Standards be brought back to Committee for future consideration following a briefing to Committee members. The requested information was provided via Memo to the Chair and Members of HRSS dated December 15, 2004.
Based on the level and degree of concerns raised specific to trees, particularly as the care of trees would relate to the development of the Urban Forest maintenance strategy for City trees and the Tree By-Law, it was determined appropriate at that time to detach the proposed tree standards so all matters relative to trees could be approached in a compressive manner and to bring back to HRSS Committee and Council for consideration only those proposed Maintenance Quality Standards that pertained to Parks and Sports Fields.
The purpose of this report is to provide an overview of the proposed
Maintenance Quality Standards for Parks and Sports Fields and the associated
financial implications and to seek Committee and Council’s approval of the
proposed standards and associated operating funds. The maintenance quality standards for trees will form part of
the comprehensive Trees and Forests Maintenance Strategy and will be presented
to Planning and Environment Committee and Council for approval under a separate
report in the first quarter of 2006.
The operating
budget expenditures associated with harmonizing service standards to provide a
basic level of service is estimated to be in the order of $975,000. This incorporates the combined cost
implications of complying with the Canadian Safety Association’s National
Guideline on Children’s Play Spaces and Equipment, of harmonizing basic
services to equalize service delivery across the city, and of harmonizing
delivery of the current Integrated Turf Management Program. This funding will support the provision of
the necessary resources required to support the operating expenditures of the
service, primarily five (5) Full-Time Equivalents (FTEs) and operating cost for
equipment. The cost to provide an
enhanced level of service to select improved roadside areas (“pocket parks”) is
estimated to require additional funding in the order of $10,000.
Further capital funding of $205,500 will be required for acquisition of the vehicle and equipment identified in the report.
To ensure an understanding of the views and expectations of residents, the Department has relied upon a compilation of various extensive community consultation processes. Specific to the development of harmonized maintenance standards, the Department has undertaken a multi-faceted consultation process comprising open houses, focus groups, a public opinion survey conducted by Decima Research Inc. on the City’s behalf, key stakeholder meetings, etc. Details of the outcome of the Decima survey were provided to Council in October 2002.
In addition to this specific research and consultation, the Department utilized broad research, such as the 2004 EKOS Citizen Satisfaction Survey presented to Council on October 27, 2004, as an opportunity to continually observe public priorities and levels of satisfaction. Also, the annual budget consultation process provides further opportunity for the Department to gain ongoing insight into public priorities and service desires. The complete details of public consultation are included in Annex C.
As well, at various stages of the development process the Department engaged appropriate advisory committees including the Ottawa Forests and Greenspace Advisory Committee, Agriculture and Rural Affairs Advisory Committee and Parks and Recreation Advisory Committee to seek input.
PWS has also participated in the consultation processes for the inter-related initiatives led by other Departments, primarily the Sports Field Strategy and Parks and Facilities By-Law developed by Community and Protective Services, and the Pesticide Use Policies developed by Planning and Growth Management.
RÉSUMÉ
À la suite de la fusion des douze
administrations municipales offrant des services de routes et de parcs
similaires – tous définis et offerts à des niveaux variables dans les anciennes
administrations – Services et Travaux publics (STP) a entamé la fusion, la
rationalisation et l’harmonisation des services en demandant au Conseil
d’approuver, le 8 août 2001, les principes directeurs de ce processus.
La Stratégie d’harmonisation des niveaux de
service approuvée comprenait les éléments clés issus des consultations menées
auprès de la communauté et des intervenants, d’une comparaison des services des
anciennes administrations et d’un examen de la communauté des pairs, de
l’élaboration de nouveaux systèmes de classification pour l’entretien et de la
création de normes pertinentes de niveaux de service.
En 2002, le Service a remis au Conseil un
rapport d'étape faisant état de l'avancement du processus d'harmonisation et,
en 2003, le Conseil a approuvé les normes de qualité en matière d'entretien des
routes et des trottoirs/sentiers.
Les normes de qualité proposées en matière
d'entretien des parcs, des terrains de sport et des arbres ont d'abord été
soumises à l'approbation du Comité de la santé, des loisirs et des services
sociaux (CSLSS) en novembre 2004. Le CSLSS a soulevé de nombreuses questions au
cours des discussions. Étant donné le degré de doute soulevé, le Comité a
demandé à ce que cette information supplémentaire soit fournie et que les
normes de qualité en matière d'entretien lui soient à nouveau présentées aux
fins d'évaluation à la suite d'une séance d'information avec les membres du
Comité. L'information demandée a été fournie par le biais d'une note de service
adressée le 15 décembre 2004 au président et aux membres du CSLSS.
Vu le niveau et le degré de préoccupation
concernant les arbres, essentiellement parce que l’entretien des arbres serait
lié à l’élaboration de la stratégie d’entretien de la forêt urbaine pour les
arbres de la Ville et au Règlement municipal sur les arbres, il a été jugé
approprié, pour le moment, de séparer les normes proposées pour les arbres afin
que toutes les questions s’y rapportant puissent être abordées d’une manière
condensée, et de ne soumettre au CSLSS et au Conseil que les normes de qualité
proposées pour l’entretien des parcs et des terrains de sport.
Le présent rapport a pour objet de donner un
aperçu des normes de qualité proposées en matière d’entretien des parcs et des
terrains de sport, et des répercussions financières qui s’y rapportent, et
d’obtenir auprès du Comité et du Conseil l’approbation des normes proposées et
des fonds pour les dépenses de fonctionnement qui s’y rapportent. Les normes de
qualité en matière d’entretien des arbres forment une partie de la stratégie
détaillée d’entretien des arbres et des forêts, et seront soumises à
l’approbation du Comité de l’urbanisme et de l’environnement et du Conseil,
dans un rapport distinct présenté au premier trimestre de 2006.
Les dépenses de fonctionnement liées à l’harmonisation des normes de
service en vue d’offrir un niveau de service de base devraient être de l’ordre
de 975 000 $. Cette somme comprend les coûts inhérents au respect de
la directive de l’Association canadienne de sécurité sur les espaces et les
équipements de jeux pour enfants, à l’harmonisation des services de base afin
de niveler la prestation de services sur tout le territoire municipal, et à
l’harmonisation de la prestation actuelle du Programme de gestion intégrée des
gazons. Ce financement permettra d’offrir les ressources nécessaires au soutien
des dépenses de fonctionnement du service, en particulier cinq (5) équivalents
temps plein (ÉTP). Le coût lié à la prestation d’un niveau de service amélioré
en bordure de route dans des secteurs sélectionnés (« parcs de
poche ») devrait nécessiter l’apport de fonds supplémentaires de l’ordre
de 10 000 $.
Des fonds de fonctionnement supplémentaires de
205 500 $ seront nécessaires pour l’acquisition du véhicule et de
l’équipement désignés dans le rapport.
Afin de garantir la compréhension du point de
vue et des attentes des résidents, le Service s’est appuyé sur une compilation
des diverses méthodes de consultation communautaire. En vue de l’élaboration de
normes d’entretien harmonisées, le Service a entrepris un processus de
consultation multifacette, comprenant des réunions portes ouvertes, des groupes
de réflexion, un sondage d’opinion publique réalisé par Decima Research Inc. au
nom de la Ville, des réunions avec des intervenants clés, etc. Les détails des
résultats du sondage de Decima ont été fournis au Conseil en octobre 2002.
Outre ce processus de recherche et de
consultation, le Service a effectué des projets de recherche étendue, tels que
le sondage EKOS de 2004 sur la satisfaction des résidents, présenté au Conseil
le 27 octobre 2004, en vue d’observer en permanence les priorités du public et
leur niveau de satisfaction. Le processus de consultation annuelle sur le
budget fournit au Service une occasion supplémentaire de connaître
régulièrement les priorités du public et leurs attentes en matière de services.
Les détails complets sur les consultation du public figurent dans l’Annexe C.
De plus,
à diverses étapes du processus d’élaboration, le Service s’est assuré la
collaboration des comités consultatifs concernés, notamment le Comité
consultatif sur les forêts et les espaces verts d’Ottawa, le Comité consultatif
sur l'agriculture et les affaires rurales et le Comité consultatif sur les
parcs et les loisirs.
STP a
également participé aux processus de consultation pour des initiatives
interreliées menées par d’autres services, essentiellement la Stratégie pour
les terrains de sport et le Règlement sur les parcs et les installations,
élaborés par les Services communautaires et de protection, ainsi que les
politiques sur l’usage des pesticides élaborées par Urbanisme et Gestion de la
croissance.
BACKGROUND
The Public Works and Services Department plays a critical role in the long-term sustainability of the City, and, more specifically, is tasked with the performance of services required to maintain the road network, parks, sports fields, and green spaces during the service phase of the asset. During the harmonization process, the Department identified a need to develop a consistent platform for the delivery of these maintenance services. Subsequently, on 08 August 2001, Council approved a Service Level Harmonization Strategy (ACS2001-TUP-SOP-0003) that included the following components:
§ A review of service level standards of the former municipal jurisdictions, a peer comparison with other comparable municipalities, and a review of legislated standards;
§ Development of maintenance classifications to group like amenities to prioritize services;
§ Service level options and financial implications.
On October 23, 2002 the Department provided
Council with a Status Report (ACS2002-TUP-SOP-0005) highlighting progress on
the harmonization process and on June 11, 2003 Council was presented with and
approved the Maintenance Quality Standards for Roads and Sidewalks/Pathways
(ACS2003-TUP-SOP-0004).
Following
approval of the Maintenance Quality Standards for Roads and Sidewalks/Pathways
the Department continued to implement the approved harmonization strategy to
develop proposed maintenance standards for parks and sports fields, as well as
trees, and presented proposed standards for Health, Recreation and Social
Services (HRSS) Committee’s consideration on November 4, 2004 (ACS2004-TUP-SOP-0005).
Following a
presentation of the key highlights of the proposed Standards, HRSS Committee
raised a number of points during discussion resulting in the desire for further
detailed information, specifically:
§ That impacts to the proposed service standards as a result of the service reductions that resulted from the 2004 budget be identified;
§ That the individual park and sports field classifications, as assigned under the proposed classification system be provided;
§ That the concerns surrounding enhanced roadside areas (“pocket parks”) be addressed;
§ That a Standard for maintenance of Cenotaphs be reviewed/developed/included; and,
§ That concerns surrounding tree maintenance as identified by the Ottawa Forests and Greenspace Advisory Committee be addressed.
Committee directed that this additional information be provided and that the Maintenance Quality Standards – Parks, Sports Fields and Trees be brought back to Committee for future consideration following a briefing to Committee members. Additional information was provided via Memo to the Chair and Members of HRSS dated December 15, 2004.
Based on the level and degree of concerns raised regarding trees, particularly as the care of trees related to the development of the Trees and Forests Maintenance Strategy for City Trees, it was determined appropriate at that time to detach the proposed Tree Standards so all matters related to trees could be approached in a comprehensive manner and to bring back to HRSS Committee and Council for consideration only those proposed maintenance quality standards that pertained to parks and sports fields.
This report
recommends service levels and Maintenance Quality Standards for Parks and
Sports Fields for Committee and Council’s approval. The proposed
standards provide for basic service levels aimed at maintaining safe and
dependable park and sports field assets during the service phase of their
lifecycle, that balance the provision of adequate park and sports field
amenities with fiscal responsibility.
It should be noted that service standards have been harmonized to
reflect the current financial realities of the city. Accordingly, some areas of the community will notice a decrease
in service levels. Over time, this
decrease will affect lifecycle costs, user acceptability and aesthetics. Developed in concert with the Sports Field Strategy (approved
June 9, 2004) and the Parks and Facilities By-Law (approved June 23, 2004)
developed by Community and Protective Services and the Pesticide Use Policy for
City of Ottawa Property (approved August 25, 2004) developed by Planning and
Growth Management, the proposed standards align to the recreation, health and
community infrastructure objectives of those policies in promoting access to
and preservation of green assets.
DISCUSSION
In June 2002, Council adopted seven principles to guide growth and long-term decision-making within the City. These guiding principles are based on extensive public consultation. The seven principles and accompanying objectives have been recognized in the development process for the City’s maintenance quality standards. The relationship between the principles and the proposed maintenance quality standards is demonstrated as follows:
The maintenance quality standards (details in Annex B and summarized in Annex A) have been developed with input from the community, through peer comparison of other municipalities and through the review of provincial guidelines. Through this process the following objectives for the standards were defined:
· To provide safe, dependable and affordable service levels;
· To preserve the infrastructure assets;
· To protect the natural environment;
· To enhance the appearance and health of the community;
· To provide a reference framework to measure performance;
· To provide a basis of “Peer Review” with other comparable cities; and
· To provide Council and citizens with a reference of expectations.
The maintenance quality standards have been written with the perspective of the user in mind. As much as possible, they anticipate the end result of maintenance services – the benefits to users. The standards outline the time and extent of a particular maintenance activity. They also link directly to larger, measurable objectives – a clean city, safe parks, etc.
The standards do not prescribe how to deliver services. How services are delivered will form part of an operations manual as delivery may evolve over time with changes in equipment, materials, innovation and technology. This is a change from many of the standards of the former municipalities, which focused on how to deliver services rather than defining the timing and extent of these services. Having measurable outcomes is also consistent with the Ottawa 20/20 vision.
To ensure an understanding of the views and expectations of residents, the Department has relied upon a compilation of various extensive community consultation processes. Specific to the development of harmonized maintenance standards, the Department has undertaken a multi-faceted consultation process comprising open houses, focus groups, a public opinion survey conducted by Decima Research Inc. on the City’s behalf, key stakeholder meetings, etc. Details of the outcome of the Decima survey were provided to Council in October 2002 and are contained in Annex C.
Based on the
results of the random telephone survey conducted by Decima Research Inc. on the
Department’s behalf, almost 9 in 10 respondents were generally, if not very,
satisfied with the overall level of service provided by the City’s maintenance
operations. Input also indicated that
residents consider important services that involve the care and management of
green spaces and aesthetic clean up.
The following are some of the more specific issues
that were raised during the consultation process (refer to Annex C for other
consultation process details):
·
While the majority of residents support the City’s initiative
to discontinue the use of chemical pesticides, many residents expressed
concerns that the quality of parks and boulevards has deteriorated.
·
The Parks and Recreation Advisory Committee expressed
concerns with the quality of the existing fields and the need to upgrade some
of them before the proposed standards can be considered effective.
In addition to this background research and consultation undertaken to provide formative direction for development of the proposed standards, the Department also relied on the 2004 EKOS Citizen Satisfaction Survey to ensure that during the ongoing development process the proposed standards continued to align with public priorities.
The EKOS survey found that 83% of residents considered Parks and greenspace maintenance to be important. A high percentage - seven in ten - residents reported that they are satisfied with parks and greenspace maintenance and that residents are also reasonably satisfied with the City as a service provider. Parks and greenspace maintenance was rated as the 5th most highly ranked satisfactory service behind Fire services, Police services, Library services and recreation facilities respectively. The EKOS survey also identified that:
§ Overgrown landscapes, debris, weeds in sports fields as well as illegal dumping were also mentioned;
§ Only 3% of residents who had contacted the City reported a concern with Parks and green space maintenance;
§ Residents in the city centre are more appreciative of the importance of parks and green space maintenance services and are more inclined to advocate increased funding for this service.
Completed details of the EKOS Citizen Satisfaction Survey were received by Council on October 27, 2004 (ACS2004-CMR-OCM-0018).
At various stages of the development process the Department engaged appropriate advisory committees to seek input and obtain additional feedback and views on park and sports field maintenance. Presentations were provided on several occasions each to the Ottawa Forests and Greenspace Advisory Committee, Agriculture and Rural Affairs Advisory Committee and Parks and Recreation Advisory Committee. These interactions were conducted with each committee at key stages in the process ensuring that the committees remained apprised of the development. A complete listing of these meetings is provided in Annex C.
At its meeting of February 22, 2005, Parks and Recreation Advisory Committee (PRAC) raised the following concerns:
· The condition of sports fields and the non-usage of pesticides;
· The development of a Parks and Recreation Master Plan was not included in the 2005 City of Ottawa Budget.
During round table discussions that ensued, the Advisory Committee
members noted the importance of a Parks and Recreation Master Plan concept and
subsequently the following resolution regarding the Maintenance Quality
Standards of Parks and Sports Fields report was approved by PRAC:
WHEREAS it is in the best
interest of all Ottawa taxpayers to know the long term effects on short term
maintenance practices.
BE IT RESOLVED THAT the Health,
Recreation and Social Services Committee return the Maintenance Quality Standards of Parks and Sports Fields report as presented to City staff for the
inclusion of long term maintenance practices and the financial impact to annual
maintenance practices; and
BE IT FURTHER RESOLVED THAT
maintenance staff be directed to establish a working committee including PRAC;
and
BE IT FURTHER RESOLVED THAT the
Maintenance Quality Standards of Parks and Sports
Fields report be referred
to PRAC for written comments, evaluation and recommendation.
With respect to the first and second resolutions, the proposed standards are not intended to alone constitute the life cycle asset continuum, but rather, in keeping with the mandate of the PWS Department, the proposed standards provide for basic service levels aimed at maintaining safe and dependable park and sports field assets during the service phase of their lifecycle. The standards are designed to provide adequate preventative maintenance to preserve the asset during this service stage, and are neither designed nor funded to extend the life of the asset beyond this stage. Optimizing the life of the asset will be achieved through a combination of maintenance and appropriate rehabilitation cycles as part of a more comprehensive asset life cycle strategy appropriately developed within the context of a comprehensive approach to sports field management. The Community and Protective Services Department (CPS) Parks and Recreation Branch is leading this initiative in conjunction with Corporate Services Department (CS), Real Property Asset Management Branch and stakeholder involvement - specifically PRAC’s involvement - will be welcomed to support the process. PWS Department will participate significantly in the development of this strategy including a condition assessment process that would consider all sports fields to determine a life cycle approach and identify immediate rehabilitation needs along with associated costs and funding gaps.
With respect to
the resolution that the proposed
Maintenance Quality Standards of Parks and Sports
Fields Report be referred to PRAC
for written comments, evaluation and recommendation, the Department provided a
presentation and draft copy of the content of this report and the proposed
Maintenance Quality Standards for Advisory Committee’s review on September 20,
2005, prior to bringing this report to Health Recreation and Social Services
Committee and Council for approval.
Parks and Recreation Advisory Committee have advised that they will be
providing their comments to Health, Recreation and Social Services Committee
during the tabling of this report.
As well, the
Department participated in the consultation processes for the inter-related
initiatives led by other Departments. Developed in concert with the Sports Field Strategy (approved
June 9, 2004) and the Parks and Facilities By-Law (approved June 23, 2004)
developed by CPS and the Pesticide Use Policy for City of Ottawa Property
(approved August 25, 2004) developed by Planning and Growth Management (PGM),
the proposed standards align to the recreation, health and community
infrastructure objectives of those policies in promoting access to and
preservation of green assets.
Practices of Former Municipalities
The development of the proposed maintenance quality standards included a review of the practices of the former municipalities. All of the former municipalities were responsible for similar maintenance activities. However, as noted earlier, the means by which they defined their standards and by which they delivered the services did vary. In some instances some of the former municipalities did not have defined standards, and services were delivered based on past practices that were consistent with community expectations. Annex A provides an overview of the proposed maintenance standards compared to the practices of the former municipalities. As also noted earlier, service standards have been harmonized to reflect the current financial realities of the city and accordingly, some areas of the community will notice a decrease in service levels impacting, over time, lifecycle costs, use acceptability and aesthetics.
Peer Comparison with Other Municipalities
The development of the proposed maintenance quality standards also included a review of the standards of other comparable municipalities. A summary of findings is presented in Annex D.
Challenges with the peer comparison included the number of standards involved and the difficulty in finding municipalities that shared all of Ottawa’s distinctive characteristics. For example, very few municipalities have developed “outcome” based standards that could be compared directly, some have no documented standards, few have a similar urban-suburban-rural component, and few are subject to the same weather conditions and profile as Ottawa. As a result, the review focused on specific areas where Ottawa compared with the other municipalities.
Contacts
were made with a number of municipalities.
Information was received from those listed below.
· Capital Cities: Quebec City, Halifax, Winnipeg, Washington DC
· Canadian Cities: London, Thunder Bay, Waterloo
· Other Agencies: National Capital Commission
Overall, the level of service proposed for the City of Ottawa is comparable to other similar municipalities. Of the capital cities consulted, it was observed that a higher level of service is provided in tourism areas (i.e. street trees, turf maintenance in high profile parks and sports fields). However, the level of service provided to other areas of the city is generally not much different than with other typical cities.
Maintenance classifications are used to categorize parks and sports fields of similar characteristics, function and level of use into similar classes used to prioritize the delivery of maintenance activities, and provide a consistent platform for service delivery across the city.
It was
recognized early in the development process that a classification system
designed to support maintenance delivery must be broad enough to correspond
with classification systems designed to serve varying objectives. Development
and assignment of the maintenance classification system for sports fields was
undertaken in direct collaboration with the Parks and Recreation Branch of CPS
to align the maintenance classification system with the classification system
developed to support the Parks and Recreation Allocations Strategy. To ensure that maintenance services applied
to sports field assets are delivered proportionate to client use and relative
to the fee structure for permitting of the facility, sports field maintenance
classifications are consistent with the allocation classification levels and
appropriate to level of use and amenities.
Likewise, the parks classification categories, organized along a recreation planning model of City, Community and Neighbourhood level parks, is fundamentally consistent with the principles of the park classification scheme currently being developed by the Planning and Growth Management Department (PGM) as an initiative under the Green Space Master Plan. The Green Space Master Plan – a comprehensive approach to managing green spaces, including natural environment and recreational areas, open spaces and parks – assumes a hierarchy of parks at the city-wide, community and local level, and consideration of the maintenance classification system is a key aspect in classifying parks for this purpose.
From a maintenance perspective, the classification system recognizes the local significance of community parks, particularly in rural areas, and provides context for the importance of the amenity relevant to the surrounding community. A summary of the development of the maintenance classification system was provided in the Service Level Standards – Status Report (ACS2002-TUP-SOP-0005) presented to Council in October 2002 and details of the maintenance classes are included in Section 201.01 of Annex B.
The
proposed maintenance quality standards have been developed with the intention
of providing a basic, consistent level of service with a focus on maintaining
the assets during the service phase. The proposed standards reflect appropriate
service levels to preserve and extend the park and sports field assets during
the maintenance phase of their lifecycles, and balance the provision of safe
and dependable park and sports field amenities with fiscal responsibility.
However, the need to balance with fiscal realities means that the proposed maintenance quality standards have also been shaped by the budget process. During the 2004 budget process, Council approved a number of Service Reductions to Programs for maintenance of City assets, including parks. Based largely on the outcome of the Universal Program Review, some of those services proposed for reduction were categorized as “enhanced” and thus considered to have a greater degree of expendability relative to services provided at the basic level.
The approved 2004 budget service reductions that relate directly to those maintenance activities standardized by the proposed Maintenance Quality Standards for Parks and Sports Fields are presented in Table 1. The table shows each 2004 budget service reduction referenced to the applicable proposed standard and the impact to that standard:
Table I: 2004
Budget Service Reduction Impacts on Proposed Maintenance Quality Standards for
Parks and Sports Fields
|
Item |
Service Reduction |
Impacted Proposed Standard |
Service Reduction Impact to Proposed
Standard |
Base Budget Impact |
|
|
TW3.1 |
Eliminate annual
fertilizing of passive park area |
203.04 |
Turf Management:
Fertilization |
Park
fertilization eliminated – no change to Sports Fields |
$ 25,000 |
|
TW3.6 |
Eliminate all
flower planting |
Na |
Flowers |
Flower Program
eliminated |
$110,000 |
|
TW3.7 |
Reduce shrub
maintenance in parks by 50% - work on reactive basis only |
205.01 |
Shrub Beds |
Standard
reflects maintenance on reactive basis only |
$110,000 |
|
TW3.47 |
Eliminate shrub
and planter maintenance on roadways |
205.01 |
Shrub Beds |
Standard
reflects activity in parks only, shrubs on roadways eliminated |
$190,000 |
|
Total Budget Impact $435,000.00 |
|||||
Given the diversity and extent of information contained in the proposed maintenance quality standards, complete details of each proposed maintenance quality standard is presented in Annex B. An overview of the proposed maintenance quality standards compared to the practices of the former municipalities is provided in Annex A. The following highlights those services with proposed standards that directly impact the operating budget as well as other significant services that were the subject of greatest public interest:
The intent of the proposed maintenance quality standards is to define the desirable level of service that the City will aim to achieve. Where governed by legislative authority and/or accepted industry guidelines, the City has a responsibility to achieve such standards as set out. The Canadian Safety Association’s (CSA) current edition of “A Guideline on Children’s Play Spaces and Equipment, A National Standard of Canada” governs basic requirements aimed to ensure provision of safe and working play structures clear of potential hazards.
The CSA’s National Standard sets out
requirements for detailed inspections and timely repairs to play structures and
governs the quality of materials used (e.g. sand) in play spaces. In addition, the CSA National Standard
requires that all maintenance and inspection be documented as part of an Annual
Comprehensive Report. The Department
estimates the cost to comply with the Canadian Safety Association’s Guidelines
on Children’s Play Spaces and Equipment to be in the order of $260,000. This funding will support the provision of the
necessary resources required to support the service, specifically 3.7 Full-Time
Equivalents (FTEs) and the operating cost of the seven various pieces of
vehicles and equipment (3 light duty trucks, 2 sand sifters and 2 trailers).
The capital acquisition cost of the vehicles and equipment is estimated at
$127,000.
Beyond park turf, most city parks typically contain an assortment of amenities ranging from site furniture, playground equipment, ball diamonds, waste receptacles, fences, signs, pathways, lighting, passive areas, etc all requiring some level of basic general maintenance such as inspection or cleaning to ensure continued provision in a safe manner and to preserve the asset.
All former municipal authorities provided similar basic park maintenance services, though perhaps defined and delivered to slightly varying levels across the former jurisdictions. In particular, Visual Inspections (to ensure safe park areas through the identification and reporting of conditions that could pose a hazard) spring cleaning (to remove debris and deleterious materials that have accumulated through the winter), and ball diamond maintenance (to ensure safe and functional infield surfaces) varied significantly enough that there is a cost impact associated with delivering these services consistently across the city. The Department estimates the cost to provide these basic maintenance services on a consistent, harmonized citywide basis to be in the order of $265,000. This funding will support the provision of the necessary resources required to support the service, specifically 1.3 FTE’s and the operating cost of the three pieces of equipment (1 tractor, 1 groomer, 1 light duty truck). The capital acquisition cost of the vehicles and equipment is estimated at $78,500.
During the community consultation process,
residents strongly indicated that parks were important community assets and,
when deciding on how to allocate funds, it was generally agreed that a higher
level of maintenance should be provided on high use/profile parks and sports
fields, given that these are generally more intensively used and more
frequently permitted facilities warranting higher service levels.
The community consultation process also indicated
a very strong support for the City’s initiative to maintain city parks without
the use of chemical pesticides. Prior
to amalgamation, it is estimated that approximately 40% of the City’s parks
were sprayed with chemical pesticides as part of an integrated pest management
program. However, in 2001, following
Council’s adoption of the Interim Pesticide Policy discontinuing their use,
pesticides were no longer applied in those former municipalities (Kanata, Gloucester,
Goulbourn, West Carleton) that had included this practice as part of their turf
management regime. More recently, with
Council approval last year of the new Corporate Pesticide Use Policy for City
of Ottawa Property, pesticides will continue to be banned for use as part of
the regular maintenance
regime, relying instead on cultural methods to manage
turf. The recommended standards for turf maintenance in parks is comparable to
the level provided in most of the former municipalities by providing bi-weekly
grass cutting and spot topdressing/overseeding. Aeration will be provided in higher profile/used parks (i.e.
Heritage, Brewer, Britannia) and spot aeration in other lower profile parks
primarily as a remedial measure. An
annual application of fertilizer in passive park areas, which was previously
undertaken only in former Gloucester, was eliminated during the 2004 budget
process. The Department currently estimates the cost to deliver this basic park
turf maintenance on a consistent, harmonized basis across the City to be in the
order of $250,000.
It is recognized that weeds will continue to be
present in most parks, especially given the fact that many parks have been
pesticide free for a number of years.
The former City of Ottawa parks system, which represents approximately
30% of the parks inventory, has been pesticide free since 1982. Attempting to maintain parks free of weeds
would be financially prohibitive. The
City has over 750 parks for a total area in excess of 2,000 hectares and the
cost to provide aeration, fertilization and more frequent grass cutting to help
sustain turf better able to compete with weeds is estimated in the order of
$2,000 per hectare for an aggregate cost in the order of $4 million,
annually. This would not totally eliminate
the potential weed problem, as the turf would still go dormant during drought
conditions, allowing weeds to become more prominent.
The Department will continue the current trend
toward increased areas of naturalization.
Environmental concerns have compelled responsible public agencies to
increase naturalized “edge” areas free of insecticides and herbicides and to
reduce the frequency of grass cutting in passive park areas. This reduction in the amount of manicured
turf area results in a greater number of areas that support a wide variety of
indigenous plant species. In time,
domestic grass previously inhabiting these newly establishing naturalized areas
will gradually yield to wildflowers as indigenous plant species adapt and the
area returns to its natural state. This
would leave designated areas in a more natural state, reduce the prominence of
unsightly weeds and allow existing limited resources to redirect efforts on the
remaining regularly maintained portions of the parks.
Concerns have been expressed that lack of
vibrant turf areas impacts the general “look of the city”. The Department continues to review emerging
alternatives, through universities/colleges and other agencies, for research
purposes and the potential to pilot alternative practices including
alternatives to chemical pesticides and alternative ground covers and grass
seed mixtures that may be more resistant to drought and competing weeds. To this end, the Department is currently
conducting a test installation of Golpla, a ground cover reinforcement system,
in a roadside boulevard
application to assess its performance in preventing soil compaction and
promoting growing conditions to create a more verdant look. Also included in this trial is the use of
White Clover and Black Medick/perennial rye mix reported to be drought and salt
tolerant and appropriate for use in compacted soil conditions typical of
roadside boulevards. Previous trials
have included, with limited success, alternative use of nematodes and pepper
extracts for the control of grubs, the use of a high-pressure steam and a
salt/vinegar mixture for the control of weeds.
The proposed maintenance standards
for sports field turf maintenance standardizes the delivery of inter-related
services that collectively constitute the Department’s Integrated Turf
Management Program (ITM), approved on an interim basis during the 2002 budget
process, designed to achieve desirable turf conditions through appropriate
maintenance levels. The ITM is designed
to provide adequate preventative maintenance to preserve the sport field asset
during its service stage, and is not designed nor funded to extend the life of
the asset. Optimizing the life of the asset can only be
achieved through combining the ITM with appropriate rehabilitation cycles as
part of a more comprehensive asset life cycle continuum strategy to be
developed jointly by the CPS, CS and PWS.
The community consultation process indicated
strong support for the management of the City’s sports fields and very strong
support for the city’s initiative to maintain city fields without the use of
chemical pesticides. Prior to
amalgamation, it is estimated that half the City’s sports fields were sprayed
with chemical pesticides as part of an integrated pest management program. As with turf in parks, as a result of the
2001 interim policy and the 2004 Corporate Pesticide Use Policy for City of
Ottawa Property, this practice remains discontinued. It should be noted that the Policy does allow for spot application of pesticide (insecticide), with
appropriate precautionary measures, during the maintenance stage in the case of
an insect infestation of non-native European Chafer and Japanese Beetles at a
threshold of 10 per square metre.
During
the 2002 budget process, Council approved an allocation of $565,000 to support
implementation of an interim ITM strategy for high profile sports fields, to
provide the following level of maintenance:
·
4 aerating cycles
·
3 fertilizing cycles using a premium grade
fertilizer
·
1 overseeding cycle
·
1 topdressing cycle
·
Grass cutting on a weekly or bi-weekly cycle
subject to growth conditions.
As part of the harmonization process, the PWS Department has continued to refine the maintenance regime based on the class of sports fields in order to provide a higher level of attention to the City’s high profile facilities (summarized in Annex A with details defined in Annex B). The Department currently estimates the cost to deliver the ITM on a consistent, harmonized basis across the City to be in the order of $200,000.
With an objective to establish a safe playing
surface, the intent of the recommended ITM program is to provide an environment
whereby the turf can successfully compete with weeds and by doing so reduce the
weed coverage, though it is recognized that it will not be feasible to
eliminate all of the weeds. Water is a
key element required to
favour optimum turf growing conditions; however, there
are only a little over a dozen fields - approximately 3% of the sport field
inventory - that are irrigated. The
capital cost to irrigate a field is estimated at $25,000 plus the annual
operating cost, making this option cost prohibitive for all fields. The Department’s desire for inclusion of
irrigation systems for new or reconstructed fields has been raised to the
attention of the Parks and Recreation Branch CPS for consideration in future
sports field development. CPS has
committed to moving forward in the development process with the intent to
irrigate class 1 type fields and to seek opportunities to partner with
community groups who have expressed interest in investing in the irrigation of
local fields.
During the consultation process, some sports
field users and some of the Parks and Recreation Advisory Committee members
expressed concerns with the condition of a small number of existing fields and
how the recommended ITM program will improve these fields. As noted earlier, there have been noticeable
improvements to the quality of some fields as a result of the interim program
and this is expected to continue.
Despite the success of the ITM as an appropriate regime to sustain
sports fields during the maintenance phase of their lifecycle, it is also
recognized that beyond a certain lifespan, fields will only benefit from the
ITM program after having been reconstructed or rehabilitated (e.g. Brewer,
Brookfield).
Many factors impact the condition of existing
fields, including the standard of construction, prior level of maintenance,
usage, lack of rest periods, age and so on.
An additional factor is the impact of grubs and other pests. While not extensive, it is estimated that
usability of approximately 1% of City fields is impacted by grub damage. It is appropriate that the development of an
asset life cycle continuum strategy and a condition assessment process to
consider all sports fields to identify and prioritize rehabilitation needs be
developed within the context of a comprehensive approach to sports field
management. Recognizing this, CPS, in
conjunction with the CS and PWS, and through stakeholder support and
involvement, is leading this initiative.
PWS will continue to significantly participate in the development of
this strategy including a condition assessment process that would consider all
sports fields to determine a life cycle approach and identify immediate
rehabilitation needs along with associated costs and funding gaps.
It is important to note that the Sports Field Strategy developed by Parks and Recreation and approved by Council on June 9, 2004 provides the framework for responding to demand to meet existing and future needs while allocating fields in a manner that supports responsible use, thus reducing unnecessary stress on the asset. This strategy, coupled with the new Parks and Facilities By-law approved by Council on June 23, 2004, provides the necessary means to ensure sports fields are utilized in a manner appropriate to the condition and purpose of the field. It also provides pragmatic rehabilitation cycles – balancing supply and demand - aimed to help sustain the benefits of the turf management practices to preserve the asset.
Prior to the 2004 budget process, the Department delivered select roadside services, which when considered collectively, were fundamental to the overall enhanced appearance of the City’s streetscape. While many of the service adjustments did not present immediate impacts, the City is beginning to see the cumulative effects of these service reductions.
More specifically, the elimination of roadside shrub maintenance has lead to the decline of portions of boulevard that had been significantly enhanced with the installation of benches and shrubs to create a park-like setting along roadsides. While these areas - situated in Rideau-Vanier Ward 12 - may be referred to as “pocket parks” or “parkettes”, they are situated squarely within the legal right-of-way; and as such, are deemed part of the “Highway” under all applicable legislation. Despite the park-like attributes, these areas of enhanced roadway cannot be zoned parkland as zoning designations are applicable to property parcels, not the right-of-way. Consequently, they are not governed by standards or funding supporting parks maintenance.
The primary means to address this situation would be through partial reinstatement of the funding for roadside shrubs maintenance services. The Department is recommending approval of an ongoing operating pressure of $10,000 to provide the Department with the ability to adequately maintain these areas.
There are 15 Cenotaphs located throughout the City, situated in both parks and along roadsides. These memorials, erected to commemorate Canada’s war veterans, soldiers and peacekeepers, are the primary focal point for Remembrance Day Ceremonies each November 11th. Fitting with the respect these monuments deserve, the Department undertakes an annual inspection in advance of November 11th to ensure that the monuments and surrounding areas are in pristine condition for the Remembrance Day Ceremonies.
During the remainder of the year, aside from priority graffiti abatement activities, there is essentially no ongoing maintenance required on the monuments. The surrounding park and roadside areas are maintained to the appropriate service levels, receiving those maintenance activities applicable to the site-specific attributes.
Based on direction from HRSS Committee, the Department has prepared a proposed Cenotaph Maintenance Quality Standard that reflects the services currently delivered and provides for additional maintenance where flowerbeds or planters with flowers are present. Funding, in the amount of $10,000 to maintain floral displays as necessary to ensure healthy growth and remove unsightly weeds, was approved by Council during the 2005 budget process. The list of the City’s Cenotaphs is presented in Annex E.
As stated
earlier in the Report, the proposed Maintenance Quality Standards reflect appropriate service levels to preserve
and to extend the park and sports field assets during the service (maintenance)
phase of their lifecycle, and to balance the provision of safe and dependable
park and sports field amenities with fiscal responsibility. The proposed maintenance standards reflect
the principles established by the Ottawa Official Plan with measurable outcomes consistent with the Ottawa 20/20 vision. As well, the proposed standards align to the recreation,
health and community infrastructure objectives of supporting policies in
promoting access to and preservation of green assets.
For those proposed service standards that cannot be achieved within the current funding envelope, the Department’s best estimates of the costing and staffing implications of delivering all services on a consistent, harmonized basis across the City are summarized in Table II:
Table II: Estimated Costs and FTEs
|
Service |
Estimated Cost Impact |
FTEs |
|
Compliance
with CSA Guidelines on Children’s Play Spaces and Equipment |
$260,000 |
3.7 |
|
Harmonization
of Park Turf Maintenance |
$250,000 |
|
|
Harmonization
of Basic Park Services |
$265,000 |
1.3 |
|
Harmonize
Integrated Turf Maintenance on Sports Fields |
$200,000 |
|
|
Boulevard
Enhancements |
$10,000 |
|
|
Total |
$985,000 |
5 |
CONSULTATION
As detailed earlier in the report, the harmonization process and the proposed Maintenance Quality Standards were the subject of an extensive consultation process with the community, Advisory Committees and other City Departments. Highlights of the consultation process were provided to Council in the October 2002 Status Report. Complete details are included in Annex C to this report. The proposed service level enhancements are directly a result of the feedback provided through this consultation process.
FINANCIAL IMPLICATIONS
The operating
expenditures associated with harmonizing service standards to provide a basic
level of service is estimated to be in the order of $975,000. This incorporates
the combined cost implications of complying with the Canadian Safety
Association’s National Guideline on Children’s Play Spaces and Equipment, of harmonizing
basic services to equalize service delivery across the city, and of harmonizing
delivery of the current Integrated Turf Management Program. This funding will support the provision of
the necessary resources required to support the operating expenditures of the
service, specifically five (5) FTEs and ten various pieces of vehicles and
equipment. The cost to provide an
enhanced level of service to select improved roadside areas (“pocket parks”) is
estimated to require additional funding of $10,000.
The $985,000 request is required to be added as an on-going operating pressure to the 2006 Operating Budget and will result in an additional tax increase of .119% and an increase of five (5) FTEs.
Further funding of $205,500 will be required to be allocated from the 2006 capital funding envelopes for acquisition of the vehicle and equipment identified in the report.
SUPPORTING DOCUMENTATION
ANNEX A - Comparison of Proposed Maintenance Quality Standards to Practices of Former Municipalities
ANNEX B - Proposed Maintenance Quality Standards for Maintenance of Parks and Sports Fields
ANNEX C – Summary of Public Consultation Process
ANNEX D – Summary of Peer Comparison with External Municipalities
ANNEX E – Inventory of Cenotaphs
maintenance quality standards –
parks and sports fields
normes de qualitÉ en matiÈre d’ENTRETIEN des parcs et des terrains de
sport
ACS2005-PWS-SOP-0009 CITY WIDE / À
L'ÉCHELLE DE LA VILLE
John Manconi, Director of Surface Operations provided a PowerPoint presentation of the item. Accompanying Mr. Manconi was Ray Yantha, District Manager for Roads, Parks and Trees from the Public Works and Services Department. A copy of the presentation is held on file.
Councillor Doucet expressed some concern about the small amount being recommended ($10,000) to maintain pocket parks and the fact he had similar parks in his ward that required maintenance. Staff explained that this amount was intended to address the maintenance requirements of those types of parks in Vanier only, as they were considered improved parts of the road allowance which were established as sitting areas.
With respect to the $1.19M budget request, Councillor Cullen asked whether this is what it would cost if Council is interested in maintaining it’s assets. Richard Hewitt, A/Deputy City Manager for Public Works and Services, explained that these pressures would be identified in the budget and final decions would impact on whether or not these recommended strategies get implemented in 2006. He confirmed that the City does not spend enough money in this area.
Councillor Stavinga referred to a statement in the report that over time, the decrease in service levels would affect lifecycle costs, user acceptability and aesthetics and she asked how staff could rationalize that statement when the report also states that the program is to preserve the infrastructure assets and enhance the appearance and health of the community. She was concerned that the Department is not provided with sufficient funds to meet the objectives defined. Mr. Manconi explained that it is a balance between maintenance and funding.
Councillor Feltmate raised some questions about naturalized areas and how they are dealt with, as opposed to sportsfields or passive parks, and how the difference in maintenance of these areas is communicated to the public. The District Manager explained that the naturalization of park areas is done through park planning staff; if the passive park is within a park with a sportsfield, it may get cut on a less frequent basis. The councillor believed this could cause some people to think the service is being reduced. The Director interjected that the challenge staff have is how to communicate to the community what the City is doing and why. He agreed that communication is the key and staff would work together to identify where those naturalized areas are and communicate out to the public how those are dealt with. Chair Holmes indicated that signs placed along roadways and highways indicating that the land is returning to a naturalized stated or is a naturalization area, can go a long way to reducing the number of complaints from the public. Councillor Stavinga mentioned that in areas of naturalization, wildflowers are planted at the side of highways to allow that natural succession of growth to occur; however, that natural succession would not be realized if the City cuts it two or three times a year. She suggested that staff not use the term “naturalization” if that is not what is happening.
In response to the comment about signage, the Director acknowledged that this method was used by some of the former municipalities and he agreed to take that suggestion into consideration with respect to how the City is communicating to the public.
Richard Fleming, Chair, Parks and Recreation Advisory Committee expressed support for the report, as well as the Maintenance Quality Standards developed in September 2004. Highlights of his presentation included, but were not limited to, the following:
- the PWS Departments’ Integrated Turf Management Program has been developed to provide sufficient preventative maintenance to preserve sport field assets during their normal lifetime; it is understood that at a certain point, these assets would require some form of rehabilitation and PRAC appreciate’s the recognition given to developing a Life Cycle Continuum strategy;
- it would be very useful to know the estimated overall value of the assets;
- if the City fails to preserve or maintain it’s assets, he questioned what would be the potential financial impact of such a loss and the impact it would have on organizations wanting to book the facility for events;
- the development of new sports fields is not keeping up with increased demand nor the loss of fields through the need to rehabilitate; he questioned how this is being addressed in the short and medium term;
- a turf maintenance process creates the optimum method of maintaining healthy turf and the Advisory Committee would not support any reductions in Service Levels, recognizing that the costs to rehabilitate a field is far greater than the annual cost of maintaining them through this process.
Specific comments on the staff recommendations are detailed in his written submission, a copy of which is held on file.
In considering the report, Councillor Stavinga inquired what the $4M annual cost would include and was advised by staff that it would provide for one aeration and fertilization, plus increased grass cutting on all parks. Adding topdressing and overseeding would be an additional $7.8M annually. The councillor believed the quality of the parks coming into the amalgamated City were and still are, not of the same standard and she asked if there could be an introduction, on an annual basis, of funds that could be rotated between the parks. The Director explained there are subsets of the $4M the committee could consider, such as the rotation to which the councillor referred. By way of order of magnitude, he explained that the amount is broken down through the various classification system for parks and the committee and Council could provide direction on how they would want staff to deal with parks, i.e., class, area, et cetera. He added that the perception of how parks were being maintained has been impacted by the fact that the former City of Ottawa stopped using pesticides on their sportsfields and parks and their integrated turf management was limited. Therefore, fields in the network that are not usable, is not a consequence of amalgamation, but the decisions made by former municipalities. He added that overuse, overbooking, use during rain periods, et cetera are all contributing factors to the state of sportsfields and parks.
Councillor Stavinga recalled how alternative turf management (ATM) and naturalization were perceived by the public as a reduction in service levels, but it was simply based on the fact the municipalities of the day did not provide enough funds to support those programs or to explain to the public what they were all about. She believed the maintenance funds being recommend are insufficient and would lead to further deterioration in the quality of parks that have been invested in previously. She suggested the committee should direct staff to explore different options.
Councillor Cullen asked for a recorded vote on the final report, to make it clear that if Council does not make this investment to maintain it’s assets, it would continue to receive more and more complaints from the community.
Councillor Chiarelli asked whether the amount staff are suggesting spending today will maintain these fields at the level where they can remain in operation and the level they are now as opposed to their optimal level. Mr. Manconi confirmed this, recognizing that optimal level has a direct correlation to rehabilitation cycles and investment and lifecycle management. Mr. Burry added that there is also the issue of proper rest on fields which the City is not doing because of the demands on these facilities. When asked what the value is of the City’s sportsfields, he indicated that just the value of the sportsfields alone (assuming the land belongs to the City), would be in the order of $30-45M.
Councillor Bédard questioned whether there is a strategy to increase the amount of greenspace in the downtown. While the Director of Parks and Recreation advised that the amount of greenspace in the inner city is probably maxed out, he indicated that any strategy looking to increase greenspace is the responsibilty of Development Services. He added that when staff are directed to look at the acquisition of property, it is examined with the advantage to adding the greenspace; however, the other part of that equation is how much other greenspace is in the neighbourhood and in this regard, he recognized that some communities, such as those in the councillor’s ward, are particularly constrained.
The councillor indicated that the downtown wards have been eliminated from the possibility of cash-in-lieu-of parks (the policy states that funds developed from a community would be put back into that community). Mr. Burry remarked that in terms of the amount of monies collected, the intention was that where there are existing parks, (but there is no potential to expand them), it is reinvestment in those particular parks. He added that should Council wish to use the money to simply expand an existing park and purchase the property, it could do so, but he suggested that in many cases and in particular with downtown properties, the amount the property would cost would far exceed what development charges would be available. The councillor indicated he would pursue an appropriate recommendation with the Planning and Environment Committee, to request that the City reinstitute the cash-in-lieu-of parkland, at least for his ward.
Moved by J. Stavinga
Whereas service standards have been harmonized to reflect the
current financial realities of the City;
Whereas, accordingly, some areas of the community will notice a
decrease in service levels;
And whereas, over time, this will affect lifecycle costs, user
acceptability and aesthetics;
Therefore Be It Resolved that staff be directed to provide Committee
and Council, as part of the 2006 budget deliberations, a continuum of
performance outcomes and funding options to enhance the maintenance of our
parks, including sports fields and other parks.
CARRIED
Councillor Brooks recognized that there is not enough money to go around but suggested that at some point in time, Council would have to look at all of it’s assets and prioritize them with regards to what can be accomplished annually within a set budget.
That Health, Recreation and Social Services Committee recommend that
Council approve the proposed Maintenance Quality Standards for Parks and Sports
Fields as set out in Annex B, subject to approval of the additional operating
and capital funding and 5 FTE requirements being added to the Surface Operations
Parks and Sports Fields 2006 Budget requirements as follows:
1.
An ongoing operating pressure of $260,000 required to comply with
the Canadian Safety Association’s Guideline on Children’s Play Spaces and
Equipment including 3.7 FTEs;
2.
An ongoing operating pressure of $250,000 to harmonize park turf
maintenance services;
3.
An ongoing operating pressure of $265,000 to harmonize basic park
maintenance services including 1.3 FTEs;
4.
An ongoing operating pressure of $200,000 to harmonize delivery of
the approved Integrated Turf Management Program;
5.
An ongoing operating pressure of $10,000 to provide maintenance to
select enhanced boulevard areas;
6.
That funding of $205,500 be allocated from the 2006 capital funding
envelopes for the acquisition of the vehicles and equipment identified in the
report.
CARRIED
YEAS (9): A. Cullen, G. Bédard, G. Brooks, R. Chiarelli, C. Doucet, D.
Deans, P. Feltmate, J. Stavinga, D. Holmes
NAYS
(0)