REQUEST FOR DECISION
DATE: June 5, 2023 Report No. P&R-23-006
TO: Dan Horan, Chief Administrative Officer
FROM: Steve Knoke, Director Parks & Recreation
SUBJECT:
Title
Esquimalt High Turf Field Community Project End
RECOMMENDATION:
Recommendation
That Council support in principle the development of a community artificial turf field located at Esquimalt High by directing staff to complete an options analysis report and feasibility study including
a) Draft agreements for construction and operations with SD61 for Council consideration; and
b) A draft business case including options for funding, construction and annual operation.
Body
RELEVANT POLICY:
Fees and Charges Bylaw, No. 3080
STRATEGIC RELEVANCE:
Engaged & Healthy Community
Strong Relationships and Partnerships
BACKGROUND:
A group of community volunteers has dedicated over 10 years planning, supporting, and fundraising for the creation of an all-weather community artificial turf field at Esquimalt High. The group known as the Esquimalt Turf-Field Collective (ETC) includes representatives from Songhees Nation, School District #61 (SD 61), Gorge Soccer, James Bay Athletic Association Rugby (JBAA Rugby) and the Township of Esquimalt (TOE). The ETC has raised approximately $1 million to date for turf field construction. The concept is that a turf field on SD61 land at Esquimalt High would be constructed by the School District and then operated and maintained by the Township of Esquimalt. The ETC applied for a $3.3M grant via the Community, Culture and Recreation stream of the Investing in Canada Infrastructure Program. Unfortunately, the grant application was not successful. The level of effort to complete this grant application was very large and a significant amount of work was completed by the ETC and all the collective’s partners in pursuit of funds. On February 27, 2023 Council received a letter from the ETC requesting funding from the Township to complete the turf field project. Staff have met with SD 61 to discuss this project and they have indicated he process, concepts and principles identified in this report are supportable.
ISSUES:
1. Rationale of Selected Option
Given Council’s expressed interest in this potential opportunity, staff have included the development of a feasibility study and options analysis for the project as part of Council’s Priorities Plan. This report outlines staff’s proposed work plan and resource commitments in order to prepare the material necessary for Council to make a decision on this potential project.
The concept of working with community partners to develop a shared resource that efficiently and effectively meets the needs of our growing community while providing increased access to healthy activities in our community, directly aligns with Council’s strategic priorities.
The project scope for Council’s consideration currently includes the following:
• SD 61 property located at Esquimalt High;
• Artificial Turf Field installation and civil works;
• Lighting, fencing, and player shelters;
• Replacement of the asphalt running track surrounding the field; and
• Contingency for project related risks.
The project would require a formal long-term joint use (JU) agreement with SD61. This agreement would include turf field construction and terms of use:
• SD 61 field construction and project management
• SD 61 field access
• Routine field maintenance
• Township / community field access
• Capital planning and asset management.
These agreements are commonplace in SD61 and the terms would be mutually agreed upon.
2. Organizational Implications
The following chart identifies preliminary tasks, responsibilities, resources and timelines.
|
Task |
Responsibility |
Estimated TOE Staff Resources |
Timeline |
|
Draft JU Agreement |
TOE |
SD61 |
20hrs |
Fall 2023 |
|
Draft Business Case |
TOE |
|
20hrs |
September |
|
Concept Design & Scope Development |
TOE |
SD61 |
25hrs |
Fall 2023 |
|
Public Engagement - Scope |
TOE |
SD61 |
25hrs |
Fall 2023 |
|
Project / Funding Approval |
TOE |
SD61 |
20hrs |
Winter 2023-2024 |
Draft JU agreement with SD 61 would include:
• TOE would be included in field design and considered an approving partner in final design and field specifications.
• SD 61 would access field for student use during normal school hours. (M-F 8 am-5 pm).
• TOE would manage access and operations during evening, weekends, and when school is not in session. This would include all bookings and allocations.
• TOE would receive capital funds from ETC partners and would create long term use agreements to provide priority times in lieu of financial commitment. Hourly rates would apply for all field rentals.
• Esquimalt Parks and Recreation currently operates and maintains recreation assets and infrastructure. It is expected that the turf field would be booked through our existing booking staff and existing booking software.
Draft business case for funding, construction and annual operation would include:
• Based on the draft JU agreement staff would develop a business case using TOE Parks and Recreation Fees and Charges Bylaw No. 3080.
• Facility use would align with current TOE facility access principles and policies.
• TOE would collect fees to offset administrative, maintenance and asset replacement cost (Turf Carpet 10-year lifespan).
• TOE would collect all user fees and would provide annual funding for future field replacement in a TOE reserve account.
The chart below identifies the next phase of the project, should the project receive approval to move forward. This phase includes tasks, responsibilities, and timelines. Construction and operation resource requirements cannot be accurately estimated until preliminary project work is complete. Items that may impact timeline including, weather and supply chain issues, as well as contractor availability, are unknown at this time:
|
Task |
Responsibility |
Timeline |
|
Approved JU Agreement |
TOE & SD61 |
TBD |
|
Start of Detailed Design Phase |
TOE |
SD61 |
Upon completion of JU Agreement |
|
Detailed design work |
TOE |
SD61 |
3-6 months |
|
Site investigations |
TOE |
SD61 |
3-6 months |
|
Procurement and tendering |
|
SD61 |
3 months |
|
Decision Point - Construction Start? |
TOE |
SD61 |
|
|
Contract award |
|
SD61 |
|
|
Construction management |
|
SD61 |
6-12 months |
|
Start of Operations |
TOE |
SD61 |
12-18 months after start of construction |
3. Financial Implications
There are risks to providing accurate budgetary numbers for a project that has not yet been designed and tendered. SD61 is currently constructing an artificial turf field at Victoria High School. TOE has requested a construction estimate from SD61 based on current and actual costs. SD61 has expressed that the provision of an accurate budget number is not possible, however they have provided a high-level construction estimate of $4.6 million based on the scope outlined above for planning purposes. This includes a $600,000 contingency and an additional $300,000 for upgraded Ethylene Propylene Diene Monomer (EPDM) infill. EPDM infill is used instead of recycled crumb rubber. EPDM is more resistant to heat, water and light and has a high resistance to abrasion and wear.
Underground sewer and drain mains have been flagged as a potential challenge that requires further investigation. The financial impacts are not known but will be investigated during the design process.
SD 61 currently has a reserve account with approximately $376,859 (Ribfest will add $50,000 in 2023) earmarked for field use. TOE would work with the remaining ETC partners to access additional funds for the project including $500,000 identified by Gorge Soccer Association and $100,000 from JBAA. Confirmation is still pending regarding further partner or grant funding opportunities.
With the above ETC $1 million funding committed, it is estimated that the project at the current scope would require $3.6 million in TOE funding. Any funding not required would be returned to TOE.
Impacts to TOE annual operational budget will be minor as revenue collected for rentals will offset maintenance expenses incurred. Further, should additional organizational resources be required, fees can be adjusted to offset additional costs. Fees and charges will include a defined value for asset replacement. This funding will be deposited annually into a reserve account dedicated to future turf replacement.
4. Sustainability & Environmental Implications
Artificial turf fields allow a high volume of activity to occur on a space that traditional grass could not support. During wet conditions natural turf fields require closure. Prolonged use in wet conditions causes extensive damage and thus requires long periods of rejuvenation and loss of access. The construction of an artificial turf field will equal the value of multiple natural grass fields and will virtually stop the interruption of access to outdoor physical activity during the wet season. No water, fertilizer, or mowing is required. Both grooming and fencing are required to prevent organic contamination which leads to premature turf replacement. This investment will provide additional access for TOE residents and local school populations to outdoor physical activity space. It will reduce reliance on travel to neighboring municipalities to access similar amenities. The artificial turf carpet has an expected life of approximately 10 years and alternative use may be possible at end of life to avoid landfill disposal.
5. Communication & Engagement
Both SD 61 and TOE (including ETC) will work together to ensure public engagement occurs effectively and efficiently. Both organizations require a comprehensive engagement process that will ensure the public can provide input and feedback on the project.
ALTERNATIVES:
1. That Council support in principle the development of a community artificial turf field located at Esquimalt High by directing staff to complete an options analysis report and feasibility study including
a. Draft agreements for construction and operations with SD61 for Council consideration; and
b. A draft business case including options for funding, construction and annual operation.
2. That Council direct staff to withdraw the Township’s participation in this project.
3. That Council provide alternative direction to staff.