Play Structure and Waterplay Areas

The Economic Development Committee recommends the adoption of the following joint report (September 2, 1998) from the Commissioners of Economic Development, Culture and Tourism, and of Urban Planning and Development Services, subject to the addition of the following recommendation:

"2.that appropriate City officials be requested to proceed with the assessment of playground equipment in City parks including a program for equipment replacement and upgrades to meet standards on a priority basis.":

Purpose:

To update Committee and Council on the Mayor's motion on playground upgrades to the new C.S.A. Standards and the provision of additional waterplay areas.

Funding Source, Financial Implications and Impact Statement:

Funding for the proposed playground improvements and provision of new waterplay areas is currently being finalized and will be included as a category item "Playground and Waterplay Areas" in the department's 1999-2003 Capital Works Programme.

Recommendation:

It is recommended that the Government of Ontario be requested to consider regulating all public and private playgrounds, including their maintenance, through the Ontario Building Code Act using the C.S.A. Standards Z614-98 as the basis for such regulations.

Council Reference/Background/History:

At its meeting of July 17, 1998, the Economic Development Committee requested "The Chief Building Official report to the Economic Development Committee on the new C.S.A. Standards for playground equipment, and the Commissioner of Economic Development, Culture and Tourism report on a phased replacement program for all City playgrounds so that all playgrounds will eventually comply with these new C.S.A. Standards as well as developing a standard city-wide inspection system for all City Playgrounds"; and the Commissioner "report on implementing eight new children's water parks."

Comments and/or Discussion and/or Justification:

In March 1998, the Canadian Standards Association (C.S.A.) introduced the "Z614-98 Standard for Children's Play Spaces and Equipment". This new "Standard" replaces the "1991 Playground Guidelines CAN/CSA-Z614-M90". The new standard provides requirements for playspaces and equipment intended for use by children aged 18 months to 12 years. The Standard contains recommendations on technical requirements and practices applicable to the design, manufacture/construction, installation, maintenance, and inspection of children's playspaces.

There has been significant harmonization of the new Standard with the American Society for Testing and Materials (ASTM) Standard on Public Playspaces, in respect to the technical nature of the Standard.

These Standards were prepared by the Technical Committee on Children's Playspaces and Equipment under the jurisdiction of the Standards Steering Committee on Public Safety and has been approved as a National Standard of Canada by the Standards Council of Canada.

Currently, there are more than 800 Parks and Recreation playgrounds, most of which were installed prior to the new C.S.A. Standards. An audit of all city owned playgrounds is a priority and is being organized. Staff will report back to this Committee with its findings and action plan. The audit will provide a comprehensive inspection of all playspaces, analysis of compliance with the new C.S.A. Standards, identify safety zones and encroachment areas. It will identify potential hazards and immediate safety concerns which will help to prioritize and establish future maintenance and/or repair programs.

There are currently five certified inspectors within the Economic Development, Culture and Tourism Department. The department goal is to establish a cross section of staff to complete the educational requirements and become certified inspectors by the C.S.A. and Canadian Parks and Recreation Association. This cross section will be made up primarily of staff in the department's five operating districts as well as the department's planning staff. This will ensure that the existing playgrounds as well as all new designs will comply with the standards.

Play equipment replacement was an ongoing practice in all former municipalities. This program has been given a high priority in our Capital Works Programme and will continue to be a priority until all playgrounds meet the 1998 C.S.A. Standards. The need to retrofit or replace older play structures is even more evident in light of the new C.S.A. Standards. Estimates are being finalized for this work and they will be identified (on a priority basis) under the project heading "Playgrounds and Waterplay" in our 1999-2003 Capital Works Programme. The criteria for retrofitting potential locations include: existing park assets, age of play equipment, the opportunity to add new life to a park, etc. It is specifically noted that recognizing the likely magnitude of required improvements, this will be a long term initiative extending beyond the 1999-2003 Capital Works Programme.

The Chief Building Official and Executive Director, Building notes that with playground related injuries it is important to recognize that many other private or public agencies, other than the City Parks and Recreation, also build playgrounds, such as schools, child care centres, family resource centres, multifamily residential complexes, etc. According to information provided by the Canadian Hospitals Injury Reporting and Prevention Program (CHIRPP) in 1993 almost 42 percent of playground injuries occurred in public parks, 34 percent at school and day care facilities and 24 percent on private properties. In a playground there are many elements that can be hazardous. CHIRPP data also shows that over a one year period out of 59,520 records of injuries of children, 8,358 were related to playgrounds.

The playground surface on which a child falls has been identified as the greatest injury causing factor, followed by inadequate barriers and height of platforms. 72 percent of all playground injuries are due to falls, of which 59 percent are due to falls directly on the playground surface.

It must be recognized that playground injuries of children should be a major cause of concern. Currently there are no mandatory requirements anywhere in Canada to control design, construction and maintenance of playgrounds or playground equipment. It is possible that improvements can be made to this situation. The solution may be to introduce such regulations in the Ontario Building Code, based on the C.S.A. Standard Z614-98.

The Mayor's motion also requested that we report on the implementation of eight new children's waterplay areas in the communities of Toronto, Scarborough, East York, York and Etobicoke.

Currently in the City of Toronto there is a total of 38 waterplay areas, (East York 6, Etobicoke 3, North York 16, Scarborough 12, Toronto 1, York 0). Those that have been built have proven to be popular.

As part of the Capital Works Programme, a number of locations will be proposed based on facility location criteria and these locations will be reviewed with the local Councillors.

Conclusions:

Departmental staff are organizing an assessment of playground equipment in City parks. The 1999-2003 Parks and Recreation Capital Works Programme submission will include a number of playground and waterplay areas across the city. Council should request the province to consider regulation of playgrounds through the Ontario Building Code.

Contact Names:

Frank Kershaw

392-8199

Yaman Uzumeri

395-7513