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

17 February 2003 / le 17 février 2003

Submitted by/Soumis par: Jocelyne St Jean, General Manager/

Directrice générale

People Services/Services aux citoyens

Contact/Personne-resource/:Dan Chenier Acting Director, Community Services /

Directeur par intérim des services communautaires

724-4122 ext. 24295, Dan.Chenier@ottawa.ca

Ref N° ACS2003-PEO-COM-0003

SUBJECT: ARENA ICE ALLOCATION PROCESS AND PROCEDURE

OBJET: PROCÉDURE D’ATTRIBUTON DES HEURES DE GLACE DES PATINOIRES INTÉRIEURES

REPORT RECOMMENDATION

That the Health, Recreation and Social Services Committee and Council receive this report for information.

RECOMMANDATIONS DU RAPPORT

Que le Comité de la santé, des loisirs et des services sociaux et le Conseil municipal prennent connaissance du présent rapport.

BACKGROUND

In June 2002, Council approved the Community Services Branch Facility Allocation Policy. At the time of approval, Council requested that staff report back after community consultation on the implementation of the work plan for ice allocation.

In July 2002 public skating admission fees were harmonized to allow for free public participation. Approximately 6,000 hours of prime (57%) and non-prime (43%) ice time is allocated to public skating. This is just over 4% of all ice time available for allocation in the City.

In terms of lost revenue for rentals, this represents an approximate cost of $650,000. The Department will maintain a schedule of public skating hours outside of the total volume of community ice time available for allocation, to maintain Committee and Council’s commitment to this service. Through the 2003 budget process arena ice rental rates were standardized.

DISCUSSION

Analysis of the current situation in City of Ottawa arenas clearly identified that the demand for prime-time ice outstrips the supply. For example, on a City-wide basis for clubs and leagues that rent large blocks of ice time, only 70% of requests for ice time can be met. The level of accommodation for requested hours, relative to the sport standards, ranges from 45 to 113 per cent. For example, a sport group may request 100 hours of ice time for the season, as per the recommended number of hours from the sport’s governing body. In some cases the City can only accommodate 45 hours of time, therefore only meeting 45% of this group’s requirement. In other cases, groups have requested and have been receiving ice time allotments above the recommended number of hours of the sport’s governing body. For this reason some groups are recorded as having more than 100% of the requirement for ice.

The intent of the allocation process is to achieve, in a clear and transparent manner, over a reasonable period of time, ice allocations that reflect league and club levels of participation and recommendations from the respective sport’s governing body on the number of hours of ice time participants at each level of a sport ideally require. These requirements will be rebalanced to reflect the level of ice availability in the City and to produce an adjusted entitlement.

Allocations Procedure Development – Key Considerations

Public-Private Partnerships

One solution to the ice shortage currently facing the City of Ottawa is the public-private partnership (P3) initiative for arenas that is presently at the Request for Proposal stage. This initiative has the potential to benefit ice users by increasing the ‘pool’ of hours that the City of Ottawa would have available for distribution. For example, with the addition of a new surface the City’s level of accommodation for requests may increase from 70% to 72% or higher, dependent upon the volume of new ice time added to the allocations pool.

Additional time that the City purchases through any P3 arrangement will be added to the existing inventory of available hours and will be allocated according to the policies, procedures and rates developed for all ice rentals, and will have the potential to benefit all users.

Prime Versus Non-Prime Hours

As a result of the data collection, consistent descriptions for prime time and non-prime time hours were established. All ice user groups will follow the same allocation procedures for prime and non-prime ice. It is important to note that while demand for prime-time ice out-weighs supply; only one-third of non-prime ice time is used.

The City’s goal is to maximize use of all arena ice time. For this reason, if a group’s allocation request exceeds their entitlement they will not necessarily be denied the request. It is possible, that if a group is willing to consider non-prime hours they may be able to meet their needs at substantial hourly savings through use of non-prime hours. If applications for ice time are lower than the total hours available, then requests from groups that are above their entitlements, or above their baseline allocation, will be considered. Applications above standard entitlements and outside of prime time hours will be allocated equitably among requesting user groups.

Accommodation of Youth

With respect to issues of ice allocation between adults and minors, the City direction is towards a family friendly approach as with other recreation programming. Where possible, minor groups will be allocated time from 4:00 p.m. to 9:00 p.m. on weeknights, and adult groups will be scheduled from 9:00 p.m. to closing. On weekends, minor time will also occur prior to 9:00 p.m. This has been termed the family friendly approach because it takes into consideration the needs of children and the adults that facilitate and support their recreation activities.

Factors for Determination of Allocation

Ice will be centrally allocated, using a consistently applied allocation process, as outlined in Appendix A. Entitlements will be based on number of hours and not specific locations or time slots. The calculation for allocation entitlements takes into account four main criteria as outlined in the policy (approved June 2002). The components and respective weights are:

1) Baseline Season (2002/03) Usage Level (20%)

In the development of the processes and procedures for ice allocation, baseline information was collected from legacy municipalities and other municipalities. Where possible, the standard or recommended number of hours per week of ice time by governing sport bodies were identified.

Each group’s entitlement to ice time, based on recommendations of governing bodies and comparator city standards was identified. These recommended hours are further adjusted to reflect the percentage level of accommodation for ice requests, based on the total number of ice available for allocation (approximately 70%). The resulting entitlement allows a comparison between similar groups that are making similar requests for the same sport and level, for example, peewee minor hockey, competitive ringette or adult broomball.

Figure 1: Determination of Entitlement

Entitlement = Sport Body Recommended Hours X 70%^*
^*City’s annual adjustment for available hours. This adjustment factor may increase if total hours available for allocation increase.

The determination of each user group’s allocation gives weight to a baseline season for 2002/03. User groups were assured that baseline allocations from the 2002/03 season will be considered in making future allocations. These baselines will have a weighting of 20% in the standardized allocation process. The baseline allocation reflects number of hours and not specific locations or time slots.

Figure 2: Determination of Required Adjustment to Baseline Season

Required Adjustment^** (in hours) = Entitlement – 2002/03 Baseline Season
^**This adjustment may be positive or negative dependent upon whether a group will receive increased or decreased hours to meet a balanced allotment (70%) for all user groups.

Staff reviewed current ice allocations by type of ice time in the context of different sports and skill levels. It was determined that ice time allotted to various groups could be realigned to be consistent within sport categories by adjusting the time allotments by a maximum of 5% annually. These adjustments will be made between three to five years, depending upon the magnitude of discrepancy between current allotments and adjusted entitlements. This will ensure that no group will be impacted negatively or positively by more than 5% of the 2002/03 baseline allotments.

Figure 3: Determination of Adjusted Annual Allocation

Annual Adjustment = 2002/03 Baseline Season – Required Adjustment X 5%^***
^***5% for year one, 10% for year two, 15% for year three, etc.

The process to reach equitable distribution over time, based on the sport’s recommended allocation, was presented at the consultations sessions with user groups. Staff made revisions to the recommended number of hours for sports and levels in response to user group input. User groups agreed that they could function with the 5 percent adjustment annually.

There are three situations that may lead to an increase in the speed at which adjustments are made for groups that are below their allocation entitlement. They are an increase in the number of hours of ice time, a redistribution of unused hours and a move to non-prime time hours.

a) Increase in Number of Hours of Ice Time
It may be possible to increase the total number of hours of ice available for allocation in the City. This may occur as a result of the addition of a new ice surface through a P3 initiative, or a new or renovated City facility. If such a situation were to occur, City staff would review existing groups operating below their entitled number of hours of ice time and adjust allocations accordingly.

b) Redistribution of Unused Hours
Some groups may find that they do not need all of the hours they have been allocated. As per allocation contracts, these groups will return these hours to the City for re-distribution to other groups. This situation could occur if a group was anticipating a registration of 500 participants, based on previous years, but actual registrations only numbered 350. Groups will be required to report annual registrations to the City.

c) Move to Non-Prime Time Hours
It is possible that groups currently below their entitlement may speed up the 5% annual adjustment process if they are willing to consider non-prime time hours. At present, only one-third of non-prime ice is used. Consequently there is a significant opportunity for groups to move into this classification of hours. The baseline allotment for each group will continue to reflect the 2002/03 season and will not be adjusted to incorporate additional hours from non-prime time opportunities.

2) Responding to Community Needs (30%)

The City will identify demographic trends and program demands to establish community priorities. A 2% ice allocation will be set aside to accommodate requests for programs that address gaps in programming and provide service to high priority areas.

Users groups expressed concern about the increased demand for ice time, particularly in areas of the City that are experiencing population growth. The issue was two-fold. Groups were concerned that they not loose time to any new organizations that may emerge as a result of this growth. They also wanted to know more about the public-private partnerships that are being developed.

Another area of concern identified by stakeholders was the issue of program registration numbers. User groups wanted assurance that the City would monitor organizations to ensure that all groups accurately report the number of registered participants. Staff confirmed that this process will be closely monitored through annual submission of registration lists. Any inconsistencies will be corrected for the next year’s allocation process.

If a new ice surface were to be added to increase the total number of hours of ice time available, a portion (2%) of time will be set aside to continue support for unique programs.

3) Classification of Program or Service on the Program Continuum (30%)

Community organizations will be required to categorize ice use requests as either introductory/participatory skill development, intermediate or advanced, as approved in the recreation service mandate. Allocations will be made by program level, with greater emphasis on introductory and general access programs.

At the consultation sessions, attendees were divided into working groups, based on the sport they represented. Participants were asked to help staff classify their programs and services along the program continuum of introductory, intermediate and advanced. By having the stakeholders place their programs on the continuum, staff have brought the users into the process. The sport organizations now have a better understanding of the priorities and processes the City will use in determining the amount of time that each group is allocated. Staff made revisions to the program continuum based on user group input at the consultation sessions.

4) Organizational Category (20%)

In order to support general access by the community, community-based recreation and sport organizations with an open registration process will be given priority before private organizations that do not have a registration process open to the general public or are commercial operations.

Allocation Process

Participants at the consultation sessions were given an overview of the proposed allocation process, and a draft of the application process, including proposed deadlines. At these meetings, the community provided feedback about the proposed new process, and offered suggestions on how to make the allocations process more equitable for all user groups. The community input shaped the revised process that is now ready for the 2003/2004 Fall and Winter season.

Using the new framework for allocations, all groups will have access to rinks in their community as well as rinks across the City. Every attempt will be made to accommodate user requests within their immediate community. In situations where this objective cannot be met, alternative solutions, such as an arena adjacent to the community, will be offered. Every effort will be made to ensure that children living in one end of the City are not travelling to the other end of the City to access recreational ice time.

Built into the allocation process is an annual review to allow user groups and staff to determine what worked well and identify areas for improvement. This annual review will provide an opportunity to notify stakeholders of potential impacts for ice allocations, for example, temporary loss of ice due to major renovations or additions of ice due to new facilities or public-private partnerships. Stakeholders agreed that as long as the annual review was built into the process, they would be prepared to proceed for the first year using the allocation process as described in Appendices A and B.

RURAL IMPLICATIONS

Using the new allocation process, rural communities will be dealt with in the same manner as all other communities.

CONSULTATION

Three consultation sessions were hosted for major users of arenas in early December 2002. Invitation letters were sent by mail approximately two weeks in advance of the sessions. Follow up phone calls were made to those who had not sent in their RSVP by the deadline date of November 27^th. Of 122 invited sports groups, representatives from 65 organizations participated in the three sessions. This corresponds to an overall attendance rate of 53%. Individual sport group representation varied: hockey 58%, ringette 90%, broomball 50%, speed skating 100% and figure skating 73%. A representative from the Parks and Recreation Advisory Committee attended one consultation session. A summary of the sessions was provided to all stakeholder user groups in February 2003.

FINANCIAL IMPLICATIONS

At present, the Community Services Branch allocates facilities to maximum capacity. This practice will continue with the implementation of the new allocation process. Financial implications will continue to be measured and will be reported during the annual budget process.

ATTACHMENTS

Appendix A– Ice Allocation Process

Appendix B– Ice Allocation Process Map

DISPOSITION

That People Services staff implement the ice allocation process and procedure for the 2003/2004 season and report back to Committee following the first stakeholder review session.

Appendix A – Ice Allocation Process

1. Application Review

Organizations will submit completed application forms.

Applications will be sorted by type of group, i.e. Minor Hockey, and by level of activity, i.e., introductory, intermediate or advanced.

The number of hours allocated will be determined by sport, number of registrants and skill level.

Allocations will be adjusted to correspond with the current inventory of ice. The adjustment will be to a maximum of 5%, for either an increase or decrease in hours.

Draft allocations to groups at each level of program or service (introductory, intermediate, advanced), based on number of participants.

2. Distribution of Allocations and Adjustments

Draft allocation hours will be sent to organizations, two weeks to review and to advise Community Services staff of any difficulties.

Tentative schedules will be distributed to all ice users.

3. Confirmation of Allocation

Within three weeks of the notification of the draft allocations, Community Services will host a Stakeholder User Forum for all block users.

All available hours and the allocation process will be reviewed with participants.

Users will be given an opportunity to trade and fine-tune their draft allotments with other users.

Exchanges will be reviewed and approved by Community Services before finalized.

4. Appeal Process

An appeal can be made on technical grounds within two weeks of the User Forum

Panel for the appeal process will include no more than five City staff and no less than two community representatives from the Parks and Recreation Advisory Committee.

The decision of the appeal panel is final.

5. Post-Season Review

Community Services Branch will invite all block users to an annual post-season community review.

Stakeholders will be invited to discuss what worked well, or areas that need to be revised for the next year.

Stakeholders will be informed of any major changes to the pool of allocations.

Organizations will be advised of the application deadlines for the next season.

Appendix B - Ice Allocation Process Map

ALLOCATION PROCESS MAP

Type of Organization, Number of

Participants, Level

STEP 1:

Application Review