January 4, 2000
To: Economic Development and Parks Committee
and Budget Advisory Committee
From: Joe Halstead, Commissioner Economic Development, Culture and Tourism
Subject: C.S.A. Playground Compliance Program
All Wards
Purpose:
To report as requested on the allocation of playground funds and recommend a program that will
bring into compliance all substandard City playgrounds by the end of 2003, as well as address
various questions arising as part of the Budget Review process.
Financial Implications and Impact Statement:
Approximately $5.65 million is required to implement the recommended program. This includes
a 1999 prior year approval of $1.6 million as part of the Capital Works Programme. Completion of
the program requires another $4.0 million, of which $1.5 million was requested in the Economic
Development, Culture and Tourism Department's 2000 Capital Budget submission but has been
deferred to FY2001.
The Chief Financial Officer and Treasurer has reviewed this report and concurs with the financial
impact statement.
Recommendations:
It is recommended that:
(1) Council approve in principle the C.S.A. Playground Compliance Program outlined in this
report bringing all substandard City playgrounds to C.S.A. standards by the end of 2003; and
(2) the appropriate City officials be authorized and directed to take all necessary action to give
effect thereto.
Background:
On July 17, 1998, the Economic Development Committee considered a motion from the Mayor, that
the Commissioner Economic Development, Culture and Tourism - "report on a phased replacement
program for all City playgrounds so that all playgrounds will eventually comply with the new C.S.A.
standards; as well as developing a standard city-wide inspection system for all City playgrounds."
The Committee requested the Commissioner to report on the Mayor's motion and other playground
matters.
Council subsequently directed staff through Clause No. 12 of Report No. 2 of the Economic
Development Committee, adopted by Council on October 1, 1998 - "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"
In approving the 1999 Capital Budget, Council added $1.6 million to the Parks and Recreation
program to bring City playgrounds to the new Canadian Standards Association (C.S.A.) standards.
Council directed that the "playground upgrades be undertaken, in consultation with the Ward
Councillors, on a two playgrounds per Ward basis" and requested a joint report from the
Commissioner of Economic Development, Culture and Tourism and the Chief Financial Officer and
City Treasurer "on the allocation of playground upgrade funds" (Clause No. 1 of Report No. 3 of the
Strategic Policies and Priorities Committee, as adopted by Council March 2, 3 and 4, 1999).
At the same meeting, Council also directed that $60,000.00 be included in the 1999 Parks and
Recreation Operating Budget for an in-house safety review of all City playgrounds. This one-time
allocation enabled the Department to backfill positions occupied by staff qualified to undertake the
review. The review was intended to: determine which playgrounds did not comply with C.S.A.
standards; prioritize replacement and repair work; and provide input to future capital programs.
Comments:
Certified playground inspectors on staff reviewed the City's 800 plus playgrounds and determined
that some or all components of 782 playgrounds did not meet the new C.S.A. standards. Cost
estimates for upgrading each non-complying playground were prepared and replacement and repair
work was prioritized for each Ward. Input was solicited from Councillors for the playground upgrade
programme by way a letter dated August 11, 1999. Written replies were received from seven
Councillors offering input regarding their Wards.
The primary criterion for determining work priorities was the severity of non-compliance to C.S.A.
standards. Priority-setting for replacement and repair work was also based on the following criteria:
age and condition of equipment; cost to repair; site impacts; and replacement value.
Council's direction to upgrade playgrounds on a two playground per Ward basis can be
accommodated within the $1.6 million budget. This amount, divided by 28 Wards, provides about
$57,000.00 per Ward. For each Ward, the initial focus is on Priority 1 replacements followed by
Priority 1 repairs as determined by the staff inventory and safety audit.
The proposed approach results in 145 rather than 56 playgrounds being brought to comply with
C.S.A. standards in the first phase of remedial work. This reflects both Council's specific directions
(e.g. to upgrade two playgrounds per Ward) and its broad intent to remedy non-complying conditions
without delay (i.e. to upgrade as many playgrounds as possible with approved funds). Such an
approach decreases risk liability from playground injuries while addressing public concern over
playground safety.
The $1.6 million allocated by Council in 1999 represents only 28% of the resources required to bring
all City playgrounds up to standard. The proposed C.S.A. Playground Compliance Program for
2001-2003 addresses the remaining 633 substandard playgrounds. Once the priority CSA programme
is complete, staff will prepare a replacement programme starting in FY2004 to ensure there is a
continuous replacement programme in place.
The objective of the compliance program is to have all City playgrounds meet the new C.S.A.
standards as quickly and cost-effectively as possible. The program, including 1999 work, consists
of replacements at 54 sites and repairs at 728 sites. The total cost is $5.65 million, including the $1.6
million allocated in 1999 and another $4.0 million to complete the program. Of the latter amount,
$1.5 million was to be included in the Economic Development, Culture and Tourism Department's
2000 Capital Budget submission, which has been deferred to FY2001
In response to the recommendation arising at the Budget Advisory Committee indicating that if
"repairs only" as opposed to "repairs and replacement" were made the priority, that $3.1 million
would be required to complete the program. It is our opinion that a balanced programme of
replacements and repairs would provide the greatest benefit. This would then allow at least one
replacement in Wards that require replacements and recognizing a total replacement was the higher
priority as it involved more CSA infractions.
In terms of the expected expenditures for replacement it is not possible to forecast exact costing short
of completing all detailed design work and tendering of these projects. This will take considerable
time and will delay implementation of the work programme. We do know from past experience that
typically the cost for a 4 to 5 piece playscape design with a sand base is approximately $50 thousand
dollars. This price would be lower if site conditions allowed regrading of base material and re-use
park furniture. In any event, if the tender price for the replacement was lower than the budgeted $50
thousand dollars, the residual would be available for further priority CSA repairs in that Ward.
Conclusions:
Using resources provided in 1999, staff evaluated all 800 plus City playgrounds against new C.S.A.
standards and is proposing replacements or repairs at 145 sites by the end of FY2000. This work
totals $1.6 million. Should replacement costs in any Ward be less than $50 thousand dollars, any
residual will be directed to priority repairs within that Ward
A program is recommended to bring to compliance the remaining 637 substandard City playgrounds
to C.S.A. standards by the end of FY2003 at a cost of $4.0 million.
Contact:
Frank Kershaw
Director Policy and Development
Tel: 392-8199
Fax: 395-0278
FKershaw@mta1.metrodesk.metrotor.on.ca
