Strategic Master Plan For the Provision of Recreation and Leisure Services

Transcription

1 CITY OF WOODSTOCK Strategic Master Plan For the Provision of Recreation and Leisure Services PREPARED BY May 2005

2 May 5, Sherwoodtowne Blvd., Suite 100 Mississauga, Ontario L4Z 1Y5 (T) / (F) dma@dmaconsulting.com Steering Committee City of Woodstock Dear Steering Committee Members: On behalf of, I am pleased to submit the Strategic Master Plan for the Provision of Recreation and Leisure Services for the Town of Woodstock. This Plan includes a Vision, Goals and Strategic Directions that will guide decision making well into the future. The Action Steps outlined in this Plan provide specific direction on key initiatives to improve or enhance leisure service delivery. We trust the report will be useful in the City s ongoing efforts to provide recreation and leisure services that are responsive, innovative, cost-effective, and reflective of emerging issues and opportunities. We have enjoyed working with the members of the Steering Committee, the Recreation Advisory Committee, Council, and municipal staff throughout this study process. Thank you again for the opportunity to be part of this important initiative. Sincerely, Wendy Donovan Principal

3 Acknowledgement The City of Woodstock s was created under the direction of a Steering Committee, with significant input from the City s Recreation Advisory Committee, the City s Director of Community Services, Bob McFarland, as well as key departmental staff. We wish to acknowledge all members of these committees, City staff and Councilors for their ongoing input, logistical support, review of draft reports, and support for and active in involvement in the consultation process. Steering Committee Members: Councillor Deb Tait: Woodstock City Council Councillor Dave Nadalin: Woodstock City Council Natalie Surridge: Youth Action Committee Chief Ron Fraser: Oxford Community Police Services Chantal McDonald: Recreation Advisory Committee Dan Gray: Recreation Advisory Committee Coral Sheehan: Southgate Seniors Centre Brian Crockett: Woodstock Public Library Brian George: Woodstock Museum Advisory Committee Shirley Julian: Woodstock Art Gallery Board Bette Jones: Woodstock Accessibility Committee Bernadette Wabie: Community Sports and Athletics Steve Willhelm: Community Sports and Athletics Recreation Advisory Committee Members: Chantal S. McDonald Sara DeKraauw Timothy D. Gibney Dan Gray Daniel W. Molinaro Michael Sheehan Mark Schadenberg Chantal S. McDonald Coral Sheehan Bob McFarland Peter Johnston Councilor Dave Nadalin Councilor Deb Tait Community Services Department: Bob McFarland: Director of Community Services Brad Janssen: Manager of Community Services Cliff Berge: Arena Facility Manager Dan Major: Parks Supervisor Peter Johnston: Supervisor of Aquatics and Recreation Programs Karen Houston: Museum Curator Maria Ricker: Art Gallery Curator Woodstock City Council: Mayor Michael Harding Councilor Jack Dunn Councilor Connie Lauder Councilor Dave Nadalin Councilor Pat Sobeski Councilor Deb Tait Most importantly, we wish to thank all community members who contributed their time, energy, interest, and concern to ensuring that the leisure opportunities they value will continue to be available to all residents of the City of Woodstock in the years to come.

4 TABLE OF CONTENTS 1.0 PLAN OVERVIEW Strategic Master Plan Purpose Vision and Principles A Strategic Master Plan Structure of the Report The Planning Process Our Facilities, Parks and Services The City of Woodstock Community Leisure Service Trends Activity trends Parks and Open Spaces: Facilities: Lifestyle Trends Themes From Consultation Activities The Challenges Service Role and Focus Facility Development and Delivery Parks and Open Space Development and Delivery STRATEGIC DIRECTIONS Strategic Directions Core Services Strategic Directions Facilities Strategic Directions -Parks and Open Space Strategic Directions Organization, Policy & Planning Department Service Role: Department Organization: ACTION STEPS Action Steps Core Services Action Steps Facility Development Action Steps Parks and Open Space Action Steps Organization, Policy & Planning STRATEGIC MASTER PLAN IMPLEMENTATION AND COSTING Implementing The Plan Financing The Plan Capital Cost Impact Capital Funding Options and Implications Operating Cost Impacts Monitoring the Plan Monitoring Tools...71 A.1 PARTNERSHIP TOOLS A.1.1 Process to Evaluate a Funding Partnership A.1.2 Assessing Funding Partnership Viability...74 A.1.2 Process for Joint Venture Partnership... 75

5 WHERE WE ARE NOW WHERE WE WANT TO BE

6 1.0 PLAN OVERVIEW 1.1 Strategic Master Plan Purpose The has three primary objectives: 1. To establish priorities for recreation facility, park and open space development. 2. To position the City to participate in, and contribute to, initiatives that are innovative, efficient, and fiscally responsible. 3. To recommend a role for the Community Services Department that reflects: the needs of the community, the evolution of service directions in the field, and opportunities for the City and its partners. Each of these objectives is described further below. 1. To establish priorities: 1a. How the Plan establishes priorities. This Plan is strategic. It identifies priorities and specific tasks required to achieve the vision and goals established for this Plan. It reflects the community s expressed and demonstrated needs, and responds to the challenges identified to get from here to there. This Plan is guided by the input of the citizens and stakeholders, the fiscal and societal realities of Woodstock, service trends, and the opportunities presented by the City s partners. 1b. What are the facility and park priorities outlined in this Plan? The Plan places high priority on the following activities: Pursuing partnership(s) for multi-purpose facility development. Providing opportunities and spaces for youth. Providing opportunities and spaces for informal, unstructured active recreational uses. Providing opportunities and spaces for creative activities. Ensuring facilities and parks respond to the needs of the disabled. Developing a linked system of parks, open space, bikeways and pathways. Ensuring a more supportive parks policy environment. Page 1

7 2. To position the City to achieve goals and service objectives: 2a. How the Plan will help position the City and the Department. The City of Woodstock s recreation, parks and culture infrastructure ranges from traditional to state-of-the-art. As the community grows, and trends and community expectations evolve, there will be demands from many quarters. The City s Strategic Plan envisions the City as a place that is Suitable for people of all ages and origins, provides room to grow and space to breathe. 1 This Plan foresees a community with recreation and leisure opportunities for all ages, interests and abilities. To achieve this desired future the City must balance demands and resources strategically through purposeful direction. 3. To recommend a Department role: 3a. Why a better defined role for the Department is needed. This Plan recognizes that the role of the Community Services Department must change. This is not a reflection on the current Department but of the enormous developments that have occurred in leisure services since the City s last master plan was written. The expectations that citizens have for these services, a new understanding of the importance of recreation with respect to health, the significance of the creative city to economic strength, and changing demographics, are some of these developments with implications for the Department s role. 2b. What are the key initiatives in this area? The Plan provides: Strong support for partnership to help achieve service goals. A clear position supporting broad-based, introductory leisure and cultural opportunities for all ages, interest and abilities, and reduced financial support for specialized interests or groups. Direction to develop policies stating the City s commitment to equity and access. Direction to undertake an active living and a creative city plan. Direction to develop a Trails Master Plan. 3b. What should the Department s role be? Leadership and co-ordination are the primary elements of the recommended role. Through leadership the Department will support a balance of services, active healthy lifestyles, creative opportunities, and informal activities, and support initiatives and events that contribute to community cohesiveness and civic pride. Through leadership and co-ordination the Department will bring partners together to develop responsive and financially efficient programs, facilities and services. Through leadership the Department will increase recruitment of and support to community volunteers, and assume greater responsibility for community development. 1 From City of Woodstock s Strategic Plan, Vision , Page 7. Page 2

8 1.2 Vision and Principles The Recreation and Leisure Services Master Plan Steering Committee prepared the following Vision Statement and Guiding Principles to guide the direction of this Strategic Master Plan. VISION STATEMENT Woodstock is a community that provides recreation and leisure opportunities for individuals of all ages, interests and abilities.. The goal statements developed by the Steering Committee have been divided into service goals What recreation and leisure services are intended to achieve, and delivery principles How services will be delivered. SERVICE GOALS 1. Recreation and leisure helps build healthy individuals and healthy communities while improving the quality of life for all residents of Woodstock. 2. Participation in recreation and leisure activities at early stages help children and youth learn social skills and creativity along with healthy bodies that can endure and be maintained for each stage of their lifetime. 3. Recreation and leisure helps maintain an active mental and physical lifestyle that can prolong healthy independent living for all including older adults and those with disabilities. 4. Individuals or groups of residents joining together in the pursuit of recreation and leisure programs create a sense of community and citizenship that is beneficial to the City of Woodstock. 5. Recreation and leisure activities promote positive social interaction reducing isolation and destructive behaviours in all ages. 6. Participation in recreation and leisure activities can lower the long-term costs to society of health care, crime prevention and social services. 7. Within the limits of the City s financial capabilities, a full range of barrier free recreation and leisure facilities and services should be accessible and available to meet the diverse needs of our community regardless of age, ability, sex, or the financial resources of an individual or family. DELIVERY PRINCIPLES 8. Partnerships with the community, other governments, service agencies, businesses and individuals are to be encouraged for the efficient and cost-effective provision of recreation and leisure facilities, programs and services. 9. Capital investment by the City of Woodstock in recreation and leisure facilities should be reasonable, justifiable, based on proven need and consistent with the financial abilities and priorities of the City. 10. Reasonable and justifiable user fees should be applied in conjunction with Council-approved municipal subsidies for the use of recreation and leisure facilities and services. Page 3

9 1.3 A Strategic Master Plan The vision and goals developed for this Plan describe what the City wishes to achieve. This envisioned future includes recreation and leisure services for all ages, interests and abilities that contribute to a healthy lifestyle, positive social interaction, inclusiveness, and sense of community. Service delivery principles guide the City to achieve this future through partnerships, attention to fiscal efficiency, and ongoing assessment of needs and opportunities. Figure 1.1 illustrates the Strategic Master Plan Framework. This Plan outlines strategic directions key initiatives that contribute to the vision, and that are supported by specific action steps. Figure 1.1: Strategic Master Plan Framework Goals Broad, value based statements describing what an organization wants to accomplish Vision Statement Service Delivery Principles Broad, value-based statements describing how an organization will deliver its services While the vision, service goals and delivery principles are typically stable over the life of a Plan, strategic directions may be completed and become part of the ongoing operational approach, or be an end in themselves. New and/or additional strategies may be added in response to changes in the local and societal environment considerations that cannot be anticipated at the time of preparing this Plan. Such developments are often well outside the scope of our current ability to anticipate (as the world events of the past five years demonstrate). The benefit of a strategic plan is its ability to respond to changing circumstances while maintaining a clear and desired course of action, its vision and goals. Strategic Direction Key initiatives that create significant change responding to the what question Action Step Actions required to implement strategic directions Strategic Direction Key initiatives needed to create significant change responding to the how question Action Step Actions required to implement strategic directions Page 4

10 1.3.1 Structure of the Report The Strategic Master Plan is presented in four chapters. Chapter One: Plan Overview: Summarizes the activities undertaken to create this plan, and highlights key points from consultation activities and the planning context. Chapter Two: Strategic Directions: Outlines the strategic directions needed to achieve the vision and goals established for this Plan. These directions are ordered as: Core Services, Facilities, Parks, and Organization, Policies and Planning. Core Service directions are discussed first as they define the overall mandate of the Community Services Department. Facilities, parks and open spaces are the physical resources needed to support core services. Directions related to organization, policies and planning are addressed last. This reflects the need to adapt the organizational structure, develop policies and undertake planning in response to the mandate and the infrastructure requirements. Chapter Three: Action Steps: Identifies actions that support the strategic directions. Chapter Four: Implementation: Summarizes the financial implications of the Plan and outlines options for financing. This Chapter also outlines a monitoring and updating process. Page 5

11 1.4 The Planning Process The (the Plan) was created by assessing the community context the current and anticipated population and demographic characteristics, the facilities, parks, services and other resources available to deliver recreation, arts, culture and sport opportunities and experiences; and by assessing the service context trends and best practices that should guide this Plan, and input from the community. This information was documented and analyzed to create a picture of the community s needs and the market conditions and considerations, and is documented in detail in the Needs & Market Assessment Technical Report 2. This detailed information is the foundation for the Plan. The following sections highlight the activities and findings of the Technical Report. Community and Service Context Sections 1.5 through 1.7 highlight the elements that create the community and service context for this Plan. Public Involvement Figure 1.2: Public participation included: An initial public meeting to initiate the Plan; Interviews with City staff, staff of regional recreation departments, local agencies, and community organization representatives; A detailed survey of over 40 voluntary sport, recreation, arts and culture organizations; Community briefs provided to non-leisure community organizations; An Internet-based comment form available to all residents; A community telephone survey involving 403 completed surveys; and Focus groups with youth, the arts and heritage community, service partners, City Council, Department staff and the sport community. The Recreation Advisory Committee met frequently to review progress and provide guidance and direction to this Plan. Section 1.8 highlights the themes that emerged from the consultation activities. Ward Map of Woodstock Generally, throughout the Plan the City is addressed as a single unit. The community survey used population distribution by Wards to ensure a representative sample of respondents from across the City. 2 City of Woodstock,, Needs and Market Assessment Technical Report, by dma Planning & Management Services, Feb Page 6

12 1.5 Our Facilities, Parks and Services The City s recreation and parks system includes: Facilities Southside Aquatic Centre, with an indoor pool and an outdoor splash park; Woodstock District Community Complex, with a twin pad arena, a gymnastics facility, a community hall and the Sports Wall of Fame, a satellite location for Fanshawe College and an early Child Care Centre; Southgate Centre, a senior s organization-run facility; Lion s outdoor pool; Civic Arena Woodstock Museum National Historic Site; Woodstock Art Gallery; The Market Centre, a 249 seat theatre; 24 soccer pitches (includes 11 at the ORC site); 19 ball diamonds; 4 outdoor basketball courts; 1 outdoor volleyball court; 1 cricket pitch; 1 lawn bowling club; Play structures and playground equipment in most community parks; 3 picnic shelters/gazebos; 6 seasonal outdoor rinks; Public Library (City owned, and Library Board operated). Parks Over 290 ha of parkland, 163 ha of which is actively maintained; Over 20 km of trails, mostly on the periphery of the City and provided in partnership with other agencies; Programs and Events A variety of aquatic, skating, general recreation, general interest, arts related and educational programs provided directly or in partnership with others; City-run events such as Cowapalooza, Canada Day, and a variety of other special events and shows provided through other organizations and community partners such as the Outdoor Farm Show and the Wood Show, etc. Page 7

13 1.6 The City of Woodstock Community Woodstock s population and socio-demographic character includes: A relatively small geographic area and concentrated population base; Moderate growth projections of approximately 25% over next 15 years, resulting in almost 10,000 additional residents; A well planned community, well situated relative to larger urban centres; Slightly more older adults than Provincial average but also slightly more very young children (suggesting a community in transition); A community with limited ethnic diversity, which is not likely to change much over the planning period; When housing and cost of living are taken into consideration, Woodstock residents have comparable incomes to Provincial averages. 1.7 Leisure Service Trends Activity trends Activity trends change as the population s demographics change, as new technology emerges, as lifestyles adjust to societal pressures and evolution, exposure to new ideas and opportunities, and availability of resources. Facilities and services that were once popular may not be as popular now or in the future. The trends noted in this section highlight the service considerations that were part of the development of this Plan. Interests that are Increasing Interests that are Stable Interests that are Declining Therapeutic aquatics & activities Unstructured fitness activities Family based activities Indoor and outdoor soccer Golf, gardening, walking Skateboarding, BMX, Unstructured court activities Extreme sports Participation in Cultural activities Home based entertainment Activities that are flexible, social and health focused, inclusive, new and exciting. Instructional swimming Minor and adult recreational hockey Football, softball, tennis Activities that are considered fundamental skills, social and recreational, rather than competitive. Competitive hockey for males Figure skating Organized baseball Activities that are highly structured, expensive and competitive, that limit socialization or that are exclusive. Page 8

14 1.7.2 Parks and Open Spaces: Trends and practices related to parks and open spaces reflect society s growing concern for the health of the environment and preservation of its features, as well as popular activities that need and use outdoor spaces. Some of the key trends and practices that guided this Plan include: Larger open spaces to hold community events important to community cohesiveness, civic pride and recognition. These events often attract tourists, bringing new money to the community. Events often require infrastructure - hydro, water, convenience stations, places for large numbers of parked cars, loading and unloading areas. Major events put significant pressure on the park. Parks and open spaces designed for these activities can contribute to a successful event, and minimize the impact of the event on open space. Larger sport parks to support tournaments and to remove sound, noise and traffic impacts from local neighbourhoods Sport fields have evolved from the local unlit ball parks designed for children and pick-up games. These activities tend to be more structured, larger, have bigger and stronger players, involve noise, traffic and occasionally lots of people. Centralized sport fields provide more of what user groups want and keep the things that residents don t want away from their homes. Sport fields for children and families to use informally. Ironically, with respect to the previous point, with the increase in sports organization, opportunities to use smaller neighbourhood sport fields for unstructured or unscheduled play has decreased. Residents (adults and children) often note that there are few opportunities just to take a bat and ball and use the neighbourhood diamond, or field, because they are scheduled by organized groups. Trails, trails and more trails On road, off road, hard surface, soft surface, use by all ages and all abilities, demand for trails is growing Elimination or minimization of pesticide use, reduction of fertilizer, resource consumption minimization, are important to today s communities. Naturalization has been a trend for over two decades. Park and sport field users however, continue to want fields that are weed free, well groomed, easily drained. The green movement of the 60 s continues to focus community awareness, and expectations for environmental responsibility. Leisure service departments are responding by adopting ecologically sustainable parkland management techniques, green building practices, and ensuring their services and programs are consistent with this movement. Friends of community parks groups are increasingly helping municipal departments to achieve their service objectives, sponsoring park amenities, and acting as park watchdogs and managing and grooming sections of public trails. Education and community awareness initiatives have become an important component of parkland management. Informational signage that conveys the intention of specific management techniques are being employed to increase public support for and awareness of these activities. Page 9

15 1.7.3 Facilities: City of Woodstock The type of facilities provided and the manner in which these facilities are designed, developed and managed has evolved along with activity and community changes. The following points reflect the current trends and practices relevant to the discussion of leisure facilities. These points apply equally to indoor and outdoor facilities. Community recreation facilities are increasingly provided in multiples (e.g., twinned arena) rather than as single component facilities. Such facilities respond to the need for efficiency (economies of scale and service convenience), changes in activities, and use by more (in number) and different (in type and groups composition) groups; Community recreation facilities are now typically built as multi-purpose facilities providing a variety of different components, responding across the ages and to many interests; Community recreation facilities are increasingly viewed as a hub or focal point of a community a gathering point not only a destination. The integration of facility components of a number of service providers e.g., health and leisure, library and leisure, leisure and social and community facility components, is increasingly common as officials and residents recognize the mutual benefits of locating these services together. Today s facilities are designed to be aesthetically pleasing, welcoming, and accessible, less utilitarian, to meet the need for a broad range of quality leisure experiences. This trend reflects the influence and competition of other providers in the market (e.g., the recent inclusion of comfortable reading chairs and seating areas in libraries, and social meeting and waiting spaces in community centres); Partnerships for the development and management of leisure facilities are increasingly the norm, with public/public; public/agency and public/private arrangements frequently represented throughout a single community. Page 10

16 1.7.4 Lifestyle Trends Lifestyle Trends and other things to watch for have important implications for the design, delivery, and programming of the City s leisure facilities, parks and open space. Some of the more important lifestyle and service trends are: The Leisure time deficit and the over-programmed child. Changing family structure, work options, realities of the economy and consumer habits have implications for public leisure service delivery. These circumstances are fuelling the demand for unstructured and unscheduled opportunities such as trails, drop-in programs, and short-term activities. Public leisure service providers increasingly compete for participant s discretionary time and resources. Growth in private sector leisure in unexpected places (e.g., cooking classes at the LCBO, fitness facilities in Grocery Stores) expands the number and type of service providers. The need to identify the public provider s core services, and base those services on strategic decision-making is extremely important. Youth have always been an important and influential consideration for public recreation services. Increasing social pressures, family structure changes, access to financial resources, and the impact of the media make this a population segment that will voice their needs in the community. Insurance costs are rising with significant implications for municipalities and community organizations. Other Provinces are beginning to address this issue, as it relates to recreation as an industry. Early in the history of public recreation in Ontario these services were provided by community organizations. Consideration of risk and the creation of a recreation profession have had implications for volunteerism. As volunteerism flounders public providers need to revisit their roots. Health and wellness are top of mind concerns to a majority of Canadians and the health benefits of leisure are clearly recognized. The emergence of low cost, innovative home entertainment and work-at-home technologies further reduces social and active experiences. Leisure service providers are responding to these issues by creating stronger alliances with the health sector, ensuring that facilities and programs are in place to address these concerns, and promoting the positive aspects of participation to all sectors of the population. Expect a different type of younger senior in the future with more disposable income, better pensions, in better health, with resources and interest in travel and continuous learning, and less interest in long-term commitments and obligations. The Boomer Project 3 notes that those born between 1946 and 1964 will focus on: how they look and feel, income and independence, enhancing their home, life and leisure and travel and exploration. Unlike previous seniors they have considerable wealth and disposable income, and will not start to consider themselves seniors until they are well into their 70 s. At the same time longer life spans and better health will create a significant group of older and frailer seniors, who, in the life of this Plan, may not have the resources of younger seniors and will continue to want more traditional senior s services integrated with health and social opportunities. 3 Matt Thornhill, The Boomer Project, Page 11

17 1.8 Themes From Consultation Activities The consultation activities are discussed in detail in the Technical Report. The points noted below reflect key themes that emerged from discussion with the public, partners, stakeholders, and Staff and Council Members. These themes the fundamental wishes and interests of the community along with the trends and community realities noted previously, guided the strategies and action steps of this Plan. Themes fall into four broad categories. Facilities Parks and Trail Development While the community is reasonably satisfied with existing recreation facilities there Most residents use the City s parks, trails and open spaces, and view are indications that some improvements to the facility supply is warranted, including maintenance of the natural environment as very important. There is pride replacement or refurbishing to respond to emerging trends and anticipated in the City s parks system and its environmental initiatives such as population growth. Communities in Bloom. Most of the City s residents use the City s recreation facilities although about a third access facilities outside the City, in some cases due to absence of facilities, potentially drawing discretionary spending away from the City. Facility needs identified include: a youth-focused skateboard park, a youth centre, multi-purpose space for a variety of active indoor programs, space for introductorylevel arts and cultural activities, an aquatic facility, and an outdoor sports facility complex. Ensuring facilities are accessible to the disabled was seen as a priority. Facility distribution did not appear to be a significant factor. Provision of facilities through a centralized or decentralized approach was discussed, with a variety of opinions on each model. Support for Service Delivery through Partnerships Among service providers and the community there was support for partnerships for facility development and program delivery, with an expectation that partnerships would involve and require some compromise on the part of all partners. There may be opportunities to develop partnerships with surrounding municipalities. There is general desire for more, and linked, trails, including hard and soft surface trails, bicycle routes, and pedestrian pathways. The community identified the need to upgrade the City s parks, trails, and playground equipment to accommodate the needs of the disabled. There is a need to upgrade some outdated playground equipment. The need for larger tracts of land to develop an outdoor sports field complex to respond to the need for tournaments was identified. Organizational and Service Directions There are indicators that the current staff complement and perhaps the services provided by staff need to be addressed. With respect to complement and service focus there are strong indications that parks maintenance and development, facility maintenance, overall direction to arts and culture, community and volunteer development and support are understaffed. This has implications for service delivery and for the capacity to develop policies, undertake research and planning, and provide guidance and support to community initiatives. This capacity also has significant implications for the ability to develop new initiatives and partnerships. There are unmet community organizational needs including better communication among groups and with the City. Page 12

18 1.9 The Challenges A Strategic Plan identifies key directions and initiatives to achieve the organization s vision and service goals. These strategies are not all the things the organization will do, they are directions specifically designed to achieve a desired future. A strategic plan follows four steps: (1) Where are we now? (2) Where do we want to be? (3) What do we need to do to get there? (to the vision) and (4) How will we know we have arrived? The activities undertaken in the first part of this Plan identified where we are now, the highlights of which are noted in the earlier sections of this Chapter. Work done in advance of this Plan by the Steering Committee, and confirmed by the consultation activities identifies where the community wants to be the vision and the goals. The Strategic Plan, particularly the strategies and the action steps in the next two chapters, outline how to get there. Finally, the action steps, and implementation and monitoring activities will assist the City and its partners to evaluate their directions and their success. Challenges must be addressed strategically and incrementally. Challenges to be addressed are divided into: Service Role and Focus; Facilities; Parks and Open Space. With a view to adopting the form follows function approach, challenges related to Service Role and Focus are discussed first, followed by Facilities and Parks and Open Space. Facilities, parks and open spaces are resources that assist the City to meet its responsibilities (these may be met in partnership) in providing leisure opportunities to residents. For each of these areas a number of challenges are discussed. Challenges are situations where a strategy is needed to move from where the City is to where it wants to be. Strategic directions and action steps to address these challenges are presented and discussed in Chapters Two and Three respectively. Any change in direction involves challenges. Challenges may take the form of resource requirements that may be difficult to achieve, corporate structure or culture that needs to adjust, community buy-in that takes time and commitment, and alliances and partnerships that have similar challenges. The direction of a significant municipal service department, and its associated infrastructure, is not a small ship to turn around. Page 13

19 1.9.1 Service Role and Focus 1. Confirming core services: Until recently, recreation (or leisure) departments had a fairly clear mandate that involved provision and or management of facilities and programs that were clearly recreational. As communities recognize the important role that leisure services play in creation of creative cities, improving the health and wellness of people and the environment, contributing to economic stability and attractiveness etc., public recreation departments have been called upon to participate in or fill many roles. As a relatively small department, Woodstock s Community Services Department must carefully assess its services and resources to determine those roles and responsibilities that reasonably fit as core services and those that do not. The vision and goals that describe what the Department wants to achieve, or be, are too broad to truly define its mandate, or its core services, although they are the place to start. Core services are defined as those things an organization must do to fulfill its vision and goals. What things must the City of Woodstock Community Service do to ensure that leisure services are provided for all ages, interests and abilities? What must the City do to provide leisure services that proactively support healthy lifestyles, social experiences, and sense of community? Determining what the City must do to achieve its vision and goals requires confirming its role. Together, the first two challenges identified in this section are perhaps the most significant for this Plan in that they will lay the foundation for strategic directions related to resources infrastructure and human. Page 14

20 2. Appropriate Service Delivery Role(s): The vision statement of this Plan is consistent with the current services of the Department, as are the goals and the service delivery principles. While there is nothing in the current service delivery roles that precludes delivery of services that support healthy individuals, healthy communities, a sense of citizenship, positive social interaction, and responsiveness to diverse needs, there is limited evidence that service delivery roles are consciously chosen to maximize achieving these goals or this vision. There are a variety of different roles that a municipal leisure service provider can adopt with respect to how it delivers or supports its services. Often referred to as a continuum, these roles include direct delivery, in which the organization is entirely responsible, shared delivery, in which the organization shares costs and responsibility, and community development, by which the organization provides varying degrees of support with the goal of transferring all responsibilities for the service to another organization. The community development term implies the intent to build capacity in the community to provide these services. Woodstock currently uses each of these roles, assuming lead responsibility for facility management, park development and maintenance, and aquatic programs, and more shared roles with respect to other services. Community development, often considered a preferred role with respect to developing community capacity, is not well represented within the Department. Partnerships are in evidence but are not particularly robust. In 2004 the City had a successful partnership with the Upper Deck, one of the partner agencies in the Youth Action Committee (itself a partnership of a number of groups and agencies in Woodstock), for the popular skateboard park at Civic Arena. The community is supportive of partnerships and initiatives with organizations such as: Boards of Education, the Conservation Authority, the YMCA, the arts community, regional and community health agencies, and arms-length groups such as the Southgate Senior s Centre. These partnerships could be enhanced, and in doing so support the goals of this Plan. Partnerships with other public and not-for-profit agencies are not the only opportunities to leverage greater involvement by the community in delivery of leisure. The existing small staff complement makes it difficult to develop greater community participation. Additional resources will be required to develop and support greater engagement of service clubs, community organizations, and neighbourhood groups. That greater engagement will ultimately pay dividends with respect to capacity building, community spirit, and community health and vitality. Confirming the City s role in delivery of these important services and events is an important issue for this Plan. Page 15

21 3. Ensuring that policies and other service tools are available: A number of potential initiatives were identified during the development of this Plan. These include potential partnerships with organizations such as the YMCA (for a future recreation facility); with various community organizations for youth facilities and services; with the Boards of Education regarding community use of schools; with the Conservation Authority for potential development on Authority lands and open space management; with the health service providers; with the arts and cultural community, etc. There are also projects underway (i.e., the development of a soccer tournament/field facility on Oxford Regional Centre lands) that involve significant partnerships. There is an absence of clear policies to guide the positions and directions the Department will assume when responding to these and other partnership requests. Tools should be developed to assist with monitoring and evaluation of services and initiatives. 4. Providing Appropriate Staff Complement and Structure: This Plan is not an organizational review and it is beyond the scope of the Plan to review staffing and organizational structure in a major way. However, there are indications that the demands placed on the Department can t be met with the current staff complement or structure. The challenge for this Plan is to identify the appropriate staff complement and structure to deliver core services. Department Structure includes both core and support functions (not to be confused with core services). Figure 1.3 illustrates the interplay between core and support functions. Core functions are the key roles the Department adopts to provide its core services and in turn achieve its vision and goals. City of Woodstock Page 16

22 Figure 1.3: Department Functions Core Functions Core Functions ensure that the City can effectively provide its core services. For example, most public recreation providers believe that by providing and managing their own facilities they can control access, cost, and service quality and therefore better ensure their core services are provided. However, another way to ensure quality without being a direct manager of facilities is through strong agreements with another provider. Special events contribute to a sense of community, although providing these events through the support of volunteers may be a stronger way to develop a sense of community. Support Functions Support functions are products and services that support and contribute to the success of Core Functions. There are indications that some support functions have received less than optimal attention (due to the small staff group), potentially undermining the support they could provide. The eight core functions listed below can contribute to the vision and goals prepared for the Strategic Master Plan. They are for the most part current Department functions. A challenge for this Plan is to confirm the appropriate core functions. Core Functions Facility Development Facility Management Parks & Open space Development Parks and Open Space Management Skill, Interest Programs Arts and Heritage Programs and Events Community Special Events Community Development and Volunteers Marketing & Promotions Facility Booking Policy & Planning Administration Monitoring and Evaluation Support Functions Page 17

23 1.9.2 Facility Development and Delivery 1. New and Renovated Facilities: There are indications of need for additional, and in some cases redeveloped or replacement, facilities. Some support for tax and user fee increases as well as willingness to fundraise for new and renovated facilities was identified. While growth will increase demand, the amount will not be sufficient, or in all cases appropriate, to fund significant capital development. A challenge for this Plan will be the prioritization and financing of these projects. 2. A Facility Model to Respond to Today s Needs and Issues: The City has a fairly centralized and single-purpose facility provision model for indoor recreation and sport facilities, and arts and cultural facilities. Some outdoor sport facilities are centralized but many are dispersed throughout the community in smaller parks. Cultural facilities are centralized in the downtown. Future facilities should reflect a facility model that supports and contributes to the goals of this Plan facilities that support diverse interests, abilities and ages, that contribute to a sense of community cohesiveness and social interaction, and facilities that support personal health and well being. 3. Facilities that Provide a Balance of Opportunities: The City currently provides facilities for a range of skill levels beginner/recreational to advanced/competitive, and for a range of interests arts and cultural facilities as well as sport and athletic facilities. The existing infrastructure tends to respond most to highly organized and structured experiences, and experiences that often focus on higher levels of play. These are valuable community assets and will continue to be important community resources. In addition to these assets there is a need to ensure spaces that support casual and unstructured use, as well as use that is introductory, recreational, and contributes to general health and wellness. The challenge for the City will be to balance the service and resource requirements of these two important service options. 4. Guidelines for Partnership Development: Service delivery through partnerships is desirable when it furthers the goals of this Plan, including the City s fiscal goals. The YMCA and Upper Deck Youth Centre expressed an interest in future partnerships with the City to develop recreation facilities. There may be opportunities to establish more formal relationships with the Boards of Education for access to school facilities, and the Upper Thames Conservation Authority around outdoor facility development/open space management. The challenge for the City and these organizations will be to find common ground and mutually acceptable roles and accommodations. Page 18

24 1.9.3 Parks and Open Space Development and Delivery 1. A Linked Multi-Purpose Trail System: While the City of Woodstock is circled by farmland and green space there is limited opportunity to connect parks within the City by a linear trail system. There may be, however, some opportunities to integrate a linked parks and trail system with on-road bikeways and pedestrian pathways and to connect urban links with the surrounding trail components. A linked multi-purpose trail system would support recreational, athletic training, and transportation uses. 2. Space to Centralize Major Outdoor Sport Facilities: Most of the ball and soccer groups use the larger centralized sport fields located at the Woodstock Community Complex. While other fields are available within neighbourhood parks, they are typically not large enough to accommodate adult-level play. Development of the tournament soccer facility on the Oxford Regional Centre is consistent with today s practice of combining several fields in one location to minimize parking and traffic congestion in local neighbourhoods and to support tournaments and the economies of scale needed for ancillary structures. There is limited land within the City to develop a tournament sports field complex. Opportunities may exist to assemble land from other partners for such a complex. 3. Opportunities for Unscheduled use of Sport Fields: The City has numerous small sport fields that are very suitable for use for unstructured, pick-up games by neighbourhood youth and families. While organized groups may not prefer these sites, they are often all that is available. Connected with the preceding statement, freeing up some of these older fields for community use is a challenge of this Plan. 4. Land for Future Multi-Purpose Facility: Land suitable for a multipurpose recreation facility site is also needed, specifically in the northeast portion of the City. 5. Strong Departmental Policies for Development and Management of Parks and Open Space: Focusing on the maintenance of existing parks was a high priority for respondents to the community telephone survey. Residents are proud of the environmental heritage of their City. While concern for the environment is central to most, there is often not a good understanding of the implications of such a position. For example, how should this focus be reflected in maintenance practices, in conversion of existing, but underused, sport fields to a more natural state, and in the development of hard and soft surface trails? Page 19

25 STRATEGIC DIRECTIONS HOW WE WILL GET THERE 1

26 2.0 STRATEGIC DIRECTIONS This section of the Final Report outlines the strategic directions that will focus the work of the Community Services Department over the next ten years. Strategic directions are initiatives that contribute directly to the vision and goals established for this Plan and for the Community Services Department. Strategic Directions are presented under four headings: 2.1 Core Services 2.2 Facilities 2.3 Parks and Open Space 2.4 Organization, Policy and Planning The organization of these sections is purposeful. Core services are the foundation of the Plan. They are the initiatives that contribute directly to the desired goals of: healthy individuals, opportunity to learn social skills and creativity, an active mental and physical lifestyles, a sense of community, positive social interaction, lowering of health costs, and responses to diverse leisure needs and interests. Strategic directions noted for core services respond to some of the challenges outlined in section Other challenges in section will be addressed in section 2.4 Organization, Policy and Planning. Facilities and parks provide the spaces within which these core programs and services take place. The nature of these spaces, how they are designed and managed, contributes directly to the leisure experience and achievement of the goals. Strategic directions for facilities and parks are addressed in section 2.2 and 2.3. Each group of strategic directions is introduced with a brief discussion of the issue. Additional background information is found in the Needs & Market Assessment Report and in Chapter One of the Final Strategic Plan. Information from these sources is not repeated in detail to ensure that the Final Report is user friendly. Where appropriate, the connection to the Plan s goals and service delivery principles is noted, although again to ensure a user-friendly document this has been noted only when clearly required. In section 3.0 action steps that implement or operationalize the strategic directions are presented, as are resource and scheduling implications of action steps. Resource implications include capital and operating cost implications as well as staffing resources required. The funding model and implementation steps are outlined in the final chapter of the Plan. Page 20