Item - 2022.IE27.6

Tracking Status

IE27.6 - Review of City of Toronto Golf Courses

Decision Type:
ACTION
Status:
Amended
Wards:
All

City Council Decision

City Council on February 2 and 3, 2022, adopted the following:  

 

1. City Council direct the General Manager, Parks, Forestry and Recreation, in consultation with the Chief Procurement Officer, to issue a negotiated request for proposals for the operation of the five City operated golf course operations, allowing for competitive bids for an improved status quo model ("hybrid model"), incorporating Indigenous economic opportunities as a scored element for consideration.

 

2. City Council authorize the General Manager, Parks, Forestry and Recreation to apply the Welcome Policy towards Junior Memberships at City operated golf courses.

 

3. City Council direct the General Manager, Parks, Forestry and Recreation to negotiate and execute agreements with relevant golf governing bodies and associations and not-for-profit organizations to deliver high-quality programming to expand access to the sport, on terms satisfactory to the General Manager, Parks Forestry and Recreation and in a form satisfactory to the City Solicitor.

 

4. City Council direct the General Manager, Parks, Forestry and Recreation, in consultation with the Chief Procurement Officer and any relevant divisions, to maintain the existing 18-hole golf course structure at Dentonia Park Golf Course, while continuing to explore opportunities for further year-round recreation, multi-use arrangements, increased accessibility and affordability for golf use, and access to Taylor Massey Creek trail ravine.

 

5. City Council direct the General Manager, Parks, Forestry and Recreation to report back to the Infrastructure and Environment Committee on a plan and design to create a safe access and entry way from the bottom of Earl Bales Park (near the storm water ponds) to the Don Valley Golf Course for off-season access and use. 

 

6. City Council direct the General Manager Parks, Forestry and Recreation to report back to the Infrastructure and Environment Committee on a data capture and survey plan to determine a general profile of who are using City of Toronto golf courses and how this data can be used to help shape future golf management policy.

 

7. City Council direct the General Manager, Parks, Forestry and Recreation to collaborate with the Toronto and Region Conservation Authority to ensure maintenance practices and Vendor operations incorporate best environmental practices (for example, consider green certification such as the Golf Environment Organization and Audubon Cooperative Sanctuary Program), and meet annually to review progress and explore opportunities for improvement.

 

8. City Council direct the General Manager, Parks, Forestry and Recreation to advance the implementation of the Parkland and Ravine Strategies on the City-owned golf courses, regarding ravine access and trail connections.

 

9. City Council direct the General Manager, Parks, Forestry and Recreation to prioritize opportunities for tree planting and natural-area restoration with a focus on native species, as part of capital works on the City-owned golf courses and reduce pesticide use in the maintenance of the City-owned golf courses to the extent possible.

 

10. City Council direct the General Manager, Parks, Forestry and Recreation to enhance support of off-season public access to, and expand complementary in-season programming aligned with Indigenous communities' and local communities' priorities on the City-owned golf courses.

 

11. City Council direct the General Manager, Parks, Forestry and Recreation to integrate the City's climate, sustainability, equity, social and partnership objectives as part of the request for proposal in Part 1 above, and retain the City's ability to advance these objectives throughout the term of the contract in collaboration with the Vendor, partners, and not-for-profit organizations focused on urban agriculture.

 

12. City Council direct the General Manager, Parks, Forestry and Recreation to advance Indigenous placemaking opportunities at the City-owned golf courses as part of future capital, wayfinding and enhancement projects in collaboration with the Indigenous Affairs Office and Aboriginal Affairs Advisory Committee, and other Indigenous partners and communities.

 

13. City Council direct the General Manager, Parks, Forestry and Recreation to develop a staff report on how Parts 7 to 12 above, align with the City's recently adopted TransformTO Net Zero Strategy by first quarter 2023, ahead of awarding the request for proposal in Part 1 above.

 

14. City Council direct the General Manager, Parks, Forestry and Recreation, in consultation with relevant divisions and local community organizations, to develop engagement and programming opportunities to increase access to golf programs for underrepresented groups in the sport, including but not limited to low-income, newcomers, women, Black, Indigenous and people of color, and Two-Spirit, lesbian, gay, bisexual, transgender, queer (plus) residents and the accessibility community.

 

15. City Council request the General Manager, Parks, Forestry and Recreation, to explore further opportunities for increased partnership and programming opportunities on City-owned golf courses for the 2022 operating season, with particular emphasis on opportunities that further achievement of the objectives outlined in Part 14 above, and to identify and include local community groups, existing programs, and new additional opportunities as part of future operational Request for Proposals.

 

16. City Council direct the General Manager, Parks, Forestry and Recreation, in consultation with relevant agencies and divisions, to explore and develop creative opportunities to improve access to Taylor Massey trail ravine from Dentonia Park Golf Course, in consultation with the local Ward Councillors and community.

 

17. City Council direct the General Manager, Parks, Forestry and Recreation, to report to the Infrastructure and Environment Committee, in consultation with local Councillors and the City Clerk, on the establishment of a City Golf Steering Committee.

 

18. City Council direct the General Manager, Parks, Forestry and Recreation, to implement an online payment system for the 2022, or earliest possible operating season following, and to include online payment needs as part of future operational Request for Proposals.

 

19. City Council direct the General Manager, Parks, Forestry and Recreation to identify feasible City golf course locations and install temporary natural skating rinks and trails.

 

20. City Council direct the General Manager Parks, Forestry and Recreation in consultation with the General Manager, Transportation Services and any other relevant divisions, to report back on opportunities for trail connections between the Taylor Creek ravine and Dentonia Park Golf Course, referencing the work previously undertaken as part of the Taylor Creek Park Management Plan and the Taylor Creek Watershed Master Plan, by second quarter of 2023, and to seek out any opportunities to accelerate implementation based on additional Ravine Strategy funding from government partners.

Background Information (Committee)

(December 17, 2021) Report from the General Manager, Parks Forestry and Recreation and the Chief Procurement Officer, Purchasing and Materials Management on a Review of City of Toronto Golf Courses
https://www.toronto.ca/legdocs/mmis/2022/ie/bgrd/backgroundfile-174599.pdf
Appendix 1 - Operational Review - Executive Summary
https://www.toronto.ca/legdocs/mmis/2022/ie/bgrd/backgroundfile-174600.pdf
Appendix 2 - Alternative and Complimentary Use Analysis
https://www.toronto.ca/legdocs/mmis/2022/ie/bgrd/backgroundfile-174601.pdf
Appendix 3 - Engagement Summary Report
https://www.toronto.ca/legdocs/mmis/2022/ie/bgrd/backgroundfile-174602.pdf

Background Information (City Council)

(January 24, 2022) Supplementary report from the General Manager, Parks, Forestry and Recreation on Review of City of Toronto Golf Courses (IE27.6a)
https://www.toronto.ca/legdocs/mmis/2022/cc/bgrd/backgroundfile-198844.pdf

Communications (Committee)

(January 6, 2022) E-mail from Max Lightstone (IE.Supp)
(January 6, 2022) E-mail from Brad Cundiff (IE.Supp)
(January 7, 2022) Letter from Ryan Logan, PGA Director, Golf Services (IE.Supp)
https://www.toronto.ca/legdocs/mmis/2022/ie/comm/communicationfile-143101.pdf
(January 7, 2022) E-mail from Brenda French (IE.Supp)
(January 7, 2022) E-mail from Jeremy Richardson (IE.Supp)
(January 7, 2022) E-mail from Nicholas Woodbridge (IE.Supp)
(January 7, 2022) E-mail from Michael Neuman (IE.Supp)
(January 7, 2022) E-mail from Scott Foster (IE.Supp)
(January 7, 2022) E-mail from Martyn Lengden (IE.Supp)
(January 7, 2022) E-mail from Mary McMahon (IE.Supp)
(January 7, 2022) Letter from Dylan Reid, Walk Toronto (IE.Supp)
https://www.toronto.ca/legdocs/mmis/2022/ie/comm/communicationfile-143142.pdf
(January 8, 2022) E-mail from Richard Wu (IE.Supp)
(January 9, 2022) E-mail from Catherine Rodd (IE.Supp)
(January 9, 2022) E-mail from Julie Dorsey, President, Humber Valley Ladies Senior Golf (IE.Supp)
https://www.toronto.ca/legdocs/mmis/2022/ie/comm/communicationfile-143145.pdf
(January 9, 2022) E-mail from Monica Tynan Day (IE.Supp)
(January 9, 2022) E-mail from Donna Tuttle (IE.Supp)
(January 10, 2022) E-mail from Richard Fink (IE.Supp)
(January 10, 2022) E-mail from Chris Zelkovich (IE.Supp)
(January 10, 2022) Letter from Councillor Brad Bradford, Beaches-East York, Ward 19, Councillor Gary Crawford, Scarborough-Southwest, Ward 20, Councillor Paula Fletcher, Toronto-Danforth, Ward 14 (IE.Supp)
https://www.toronto.ca/legdocs/mmis/2022/ie/comm/communicationfile-143149.pdf
(January 10, 2022) E-mail from GS Colgrove (IE.Supp)
(January 10, 2022) E-mail from Janet Leverington (IE.Supp)
(January 10, 2022) Letter from Ben Watt-Meyer, Landscape Architect OALA CSLA, on behalf of Design Climate Action (IE.Supp)
https://www.toronto.ca/legdocs/mmis/2022/ie/comm/communicationfile-143159.pdf
(January 10, 2022) E-mail from Stephanie Radcliffe (IE.Supp)
(January 10, 2022) E-mail from Morgan Rubes (IE.Supp)
(January 10, 2022) E-mail from Rick Laprairie (IE.Supp)
(January 10, 2022) Submission from Naomi Faulkner (IE.Supp)
(January 10, 2022) E-mail from Michael Polanyi (IE.Supp)
(January 10, 2022) E-mail from Ekow Stone, School Grown, Foodshare Toronto (IE.Supp)
https://www.toronto.ca/legdocs/mmis/2022/ie/comm/communicationfile-143166.pdf
(January 10, 2022) E-mail from Sharon Jorgensen, President Ladies Youthful Seniors Golf Group (IE.Supp)
https://www.toronto.ca/legdocs/mmis/2022/ie/comm/communicationfile-143200.pdf
(January 10, 2022) E-mail from Tory Maitland (IE.Supp)
(January 10, 2022) Letter from Keagan Gartz, Executive Director, Cycle Toronto (IE.Supp)
https://www.toronto.ca/legdocs/mmis/2022/ie/comm/communicationfile-143187.pdf
(January 10, 2022) E-mail from Matthew Gibbs (IE.Supp)
(January 10, 2022) E-mail from James Zorbas (IE.Supp)
(January 10, 2022) E-mail from Brodie Germain (IE.Supp)
(January 10, 2022) E-mail from Vanessa Fiorido (IE.Supp)
(January 10, 2022) Letter from Rhonda Teitel-Payne, Co-Coordinator, Toronto Urban Growers (IE.Supp)
https://www.toronto.ca/legdocs/mmis/2022/ie/comm/communicationfile-143191.pdf
(January 10, 2022) E-mail from Kevin Northrup and Family (IE.Supp)
(January 10, 2022) E-mail from David Shilman (IE.Supp)
(January 11, 2022) E-mail from Ellen Schwartzel, President, Toronto Field Naturalists (IE.Supp)
https://www.toronto.ca/legdocs/mmis/2022/ie/comm/communicationfile-143160.pdf
(January 10, 2022) E-mail from Hannu Ylanko (IE.Supp)
(January 11, 2022) E-mail from Kali Hutton (IE.Supp)
(January 10, 2022) E-mail from M. McArthur (IE.Supp)
(January 11, 2022) Letter from Ryan Cooney, Bogey to Birdie Business Solutions, Founder and Executive Director for Canadian Youth Golf Alliance, and Kumsa Baker, Canadian Youth Golf Alliance -Youth Employment Program Coordinator (IE.Supp)
https://www.toronto.ca/legdocs/mmis/2022/ie/comm/communicationfile-143237.pdf
(January 11, 2022) E-mail from Sarah Gates (IE.Supp)
(January 11, 2022) E-mail from Toni Paolasini (IE.Supp)
(January 11, 2022) E-mail from Lorraine Sheffield (IE.New)
(January 11, 2022) Letter from Paul M. Taylor, Executive Director, FoodShare (IE.New)
https://www.toronto.ca/legdocs/mmis/2022/ie/comm/communicationfile-143197.pdf
(January 11, 2022) Submission from Chimu Titi, Program Coordinator, Sustainable Living, Access Alliance (IE.New)
https://www.toronto.ca/legdocs/mmis/2022/ie/comm/communicationfile-143199.pdf
(January 11, 2022) E-mail from Richard Gibbs (IE.New)
(January 11, 2022) E-mail from Elisabeth Smitko (IE.New)
(January 11, 2022) E-mail from Tara Duff (IE.New)
(January 11, 2022) E-mail from Brett Quance (IE.New)
(January 11, 2022) E-mail from Mark Bertschmann (IE.New)
(January 11, 2022) E-mail from Michael Wiseman (IE.New)
(January 11, 2022) E-mail from William Oakes (IE.New)
(January 11, 2022) E-mail from Ron Hoff (IE.New)
(January 11, 2022) E-mail from Jeff MacDonald (IE.New)
(January 11, 2022) Letter from Diana Yoon, Climate Specialist, Toronto Environmental Alliance (TEA) (IE.New)
https://www.toronto.ca/legdocs/mmis/2022/ie/comm/communicationfile-143267.pdf
(January 11, 2022) E-mail from Marnie Jennings (IE.New)
(January 11, 2022) E-mail from Craig Labbett (IE.New)
(January 11, 2022) E-mail from Clifford T. (IE.New)
(January 11, 2022) E-mail from Dale Robertson (IE.New)

Communications (City Council)

(January 15, 2022) E-mail from Naomi Faulkner (CC.Main)
(January 17, 2022) E-mail from Carol Beatty (CC.Main)
(January 14, 2022) E-mail from Craig Labbett (CC.Main)
(January 14, 2022) E-mail from Bob Collins (CC.Main)
(January 14, 2022) E-mail from Lois E. Abraham (CC.Main)
(February 1, 2022) Letter from Afri-Can FoodBasket, Black Environmental Initiative, Design Climate Action, FoodShare, Greenpeace Canada, Progress Toronto, Social Planning Toronto, South Asian Women's Rights Organization, Sundance Harvest, Toronto Environmental Alliance, Toronto Field Naturalists, Toronto Youth Food Policy Council, Toronto Urban Growers and Walk Toronto (CC.New)
https://www.toronto.ca/legdocs/mmis/2022/cc/comm/communicationfile-145301.pdf
(February 2, 2022) Petition from Lucy Falco headed "Save Toronto Golf Courses" with 3,465 signatories (CC.New)
https://www.toronto.ca/legdocs/mmis/2022/cc/comm/communicationfile-145341.pdf

Motions (City Council)

1 - Motion to Amend Item (Additional) moved by Councillor Brad Bradford (Carried)

That:

 

1. City Council request the General Manager, Parks, Forestry and Recreation, to explore further opportunities for increased partnership and programming opportunities on City-owned golf courses for the 2022 operating season, with particular emphasis on opportunities that further achievement of the objectives outlined in Infrastructure and Environment Committee Recommendation 14, and to identify and include local community groups, existing programs, and new additional opportunities as part of future operational Request for Proposals.


Motion to Adopt Item as Amended (Carried)

Motion to Reconsider Item moved by Councillor Brad Bradford (Carried)

That in accordance with the provisions of Chapter 27, Council Procedures, City Council reconsider Item IE27.6.


1 - Motion to Amend Item (Additional) moved by Councillor Brad Bradford (Carried)

That:

 

1. City Council request the General Manager, Parks, Forestry and Recreation, to explore further opportunities for increased partnership and programming opportunities on City-owned golf courses for the 2022 operating season, with particular emphasis on opportunities that further achievement of the objectives outlined in Infrastructure and Environment Committee Recommendation 14, and to identify and include local community groups, existing programs, and new additional opportunities as part of future operational Request for Proposals.

Vote (Amend Item (Additional)) Feb-03-2022 12:30 PM

Result: Carried Majority Required - IE27.6 - Bradford - motion 1 - REVOTE
Total members that voted Yes: 23 Members that voted Yes are Paul Ainslie, Ana Bailão, Brad Bradford, Shelley Carroll, Gary Crawford, John Filion, Paula Fletcher, Michael Ford, Mark Grimes, Stephen Holyday, Mike Layton, Nick Mantas, Josh Matlow, Jennifer McKelvie, Denzil Minnan-Wong, Frances Nunziata (Chair), James Pasternak, Gord Perks, Anthony Perruzza, Jaye Robinson, Michael Thompson, John Tory, Kristyn Wong-Tam
Total members that voted No: 0 Members that voted No are
Total members that were Absent: 3 Members that were absent are Mike Colle, Joe Cressy, Cynthia Lai

Motion to Adopt Item as Amended (Carried)

Vote (Adopt Item as Amended) Feb-03-2022 12:32 PM

Result: Carried Majority Required - IE27.6 - Adopt the Item as amended - REVOTE
Total members that voted Yes: 23 Members that voted Yes are Paul Ainslie, Ana Bailão, Brad Bradford, Shelley Carroll, Gary Crawford, John Filion, Paula Fletcher, Michael Ford, Mark Grimes, Stephen Holyday, Mike Layton, Nick Mantas, Josh Matlow, Jennifer McKelvie, Denzil Minnan-Wong, Frances Nunziata (Chair), James Pasternak, Gord Perks, Anthony Perruzza, Jaye Robinson, Michael Thompson, John Tory, Kristyn Wong-Tam
Total members that voted No: 0 Members that voted No are
Total members that were Absent: 3 Members that were absent are Mike Colle, Joe Cressy, Cynthia Lai

Point of Order by Councillor Stephen Holyday

Councillor Holyday, on a Point of Order, stated that Councillor Fletcher carefully directed her remarks at him, and while he will not retaliate, Councillor Holyday suggested that Councillor Fletcher should check her facts.


Point of Order by Councillor Shelley Carroll

Councillor Carroll, on a Point of Order, stated that in the interest of meeting discipline, the Speaker should rule if Councillor Holyday has a Point of Order.

Ruling by Speaker Frances Nunziata
Speaker Nunziata accepted Councillor Carroll's Point of Order and ruled that Councillor Holyday did not have a Point of Order.


Point of Order by Councillor Stephen Holyday

Councillor Holyday, on a Point of Order, stated that Councillor Fletcher's comments were specifically directed to him as a Member of Council in respect of his earlier comments, and he believes that it was a Point of Order because comments should be through the Speaker.

Ruling by Speaker Frances Nunziata
Speaker Nunziata accepted the Point of Order, and ruled that Councillor Fletcher's comments were not directed at Councillor Holyday but were about golf courses in Etobicoke.

Declared Interests (City Council)

The following member(s) declared an interest:

Councillor Mike Colle - as his son works for the firm that undertook the review report.
Written Declaration: https://secure.toronto.ca/council/declared-interest-file.do?id=10637

IE27.6 - Review of City of Toronto Golf Courses

Decision Type:
ACTION
Status:
Amended
Wards:
All

Committee Recommendations

The Infrastructure and Environment Committee recommends that:  

 

1. City Council direct the General Manager, Parks, Forestry and Recreation, in consultation with the Chief Procurement Officer, issue a negotiated request for proposals for the operation of the five City operated golf course operations, allowing for competitive bids for an improved status quo model ("hybrid model"), incorporating Indigenous economic opportunities as a scored element for consideration.

 

2. City Council authorize the General Manager, Parks, Forestry and Recreation to apply the Welcome Policy towards Junior Memberships at City operated golf courses.

 

3. City Council direct the General Manager, Parks, Forestry and Recreation to negotiate and execute agreements with relevant golf governing bodies and associations and not-for-profit organizations to deliver high-quality programming to expand access to the sport, on terms satisfactory to the General Manager, Parks Forestry and Recreation and in a form satisfactory to the City Solicitor.

 

4. City Council direct the General Manager, Parks, Forestry and Recreation, in consultation with Chief Procurement Officer and any relevant divisions, to maintain the existing 18-hole golf course structure at Dentonia Park Golf Course, while continuing to explore opportunities for further year-round recreation, multi-use arrangements, increased accessibility and affordability for golf use, and access to Taylor Massey Creek trail ravine.

 

5. City Council direct the General Manager, Parks, Forestry and Recreation to report back to the Infrastructure and Environment Committee on a plan and design to create a safe access and entry way from the bottom of Earl Bales Park (near the storm water ponds) to the Don Valley Golf Course for off-season access and use. 

 

6. City Council direct the General Manager Parks, Forestry and Recreation to report back to the Infrastructure and Environment Committee on a data capture and survey plan to determine a general profile of who are using City of Toronto golf courses and how this data can be used to help shape future golf management policy.

 

7. City Council direct the General Manager, Parks, Forestry and Recreation to collaborate with the Toronto and Region Conservation Authority to ensure maintenance practices and Vendor operations incorporate best environmental practices (e.g. consider green certification such as the Golf Environment Organisation and Audubon Cooperative Sanctuary Program), and meet annually to review progress and explore opportunities for improvement.

 

8. City Council direct the General Manager, Parks, Forestry and Recreation to advance the implementation of the Parkland and Ravine Strategies on the City-owned golf courses, regarding ravine access and trail connections.

 

9. City Council direct the General Manager, Parks, Forestry and Recreation to prioritize opportunities for tree planting and natural-area restoration with a focus on native species, as part of capital works on the City-owned golf courses and reduce pesticide use in the maintenance of the City-owned golf courses to the extent possible.

 

10. City Council direct the General Manager, Parks, Forestry and Recreation to enhance support of off-season public access to, and expand complementary in-season programming aligned with Indigenous communities' and local communities' priorities on the City-owned golf courses.

 

11. City Council direct the General Manager, Parks, Forestry and Recreation to integrate the City's climate, sustainability, equity, social and partnership objectives as part of the request for proposal in Recommendation 1 above, and retain the City's ability to advance these objectives throughout the term of the contract in collaboration with the Vendor, partners, and not-for-profit organizations focused on urban agriculture.

 

12. City Council direct the General Manager, Parks, Forestry and Recreation to advance Indigenous placemaking opportunities at the City-owned golf courses as part of future capital, wayfinding and enhancement projects in collaboration with the Indigenous Affairs Office and Aboriginal Affairs Advisory Committee, and other Indigenous partners and communities.

 

13. City Council direct the General Manager, Parks, Forestry and Recreation to develop a staff report on how Recommendations 7 to 12 above, align with the City's recently adopted TransformTO Net Zero Strategy by first quarter 2023, ahead of awarding the request for proposal in Recommendation 1 above.

 

14. City Council direct the General Manager, Parks, Forestry and Recreation, in consultation with relevant divisions and local community organizations, to develop engagement and programming opportunities to increase access to golf programs for underrepresented groups in the sport, including but not limited to low-income, newcomers, women, BIPOC, and 2SLGBTQ+ residents and the accessibility community.

 

15. City Council direct the General Manager, Parks, Forestry and Recreation, in consultation with relevant agencies and divisions, to explore and develop creative opportunities to improve access to Taylor Massey trail ravine from Dentonia Park Golf Course, in consultation with the local Ward Councillors and community.

 

16. City Council direct the General Manager, Parks, Forestry and Recreation, to report to the Infrastructure and Environment Committee, in consultation with local Councillors and the City Clerk, on the establishment of a City Golf Steering Committee.

 

17. City Council direct the General Manager, Parks, Forestry and Recreation, to implement an online payment system for the 2022, or earliest possible operating season following, and to include online payment needs as part of future operational Request for Proposals.

 

18. City Council direct the General Manager, Parks, Forestry and Recreation to identify feasible City golf course locations and install temporary natural skating rinks and trails.

 

19. City Council direct the General Manager Parks, Forestry and Recreation in consultation with the General Manager of Transportation Services and any other relevant divisions, to report back on opportunities for trail connections between the Taylor Creek ravine and Dentonia Park Golf Course, referencing the work previously undertaken as part of the Taylor Creek Park Management Plan and the Taylor Creek Watershed Master Plan, by second quarter of 2023, and to seek out any opportunities to accelerate implementation based on additional Ravine Strategy funding from government partners.

Origin

(December 17, 2021) Report from the General Manager, Parks Forestry and Recreation and the Chief Procurement Officer, Purchasing and Materials Management

Summary

Parks, Forestry, and Recreation has seven golf courses under its operational management. Two are leased out fully, and five are operated under a mixed model where golf course assets and turf are maintained by the City, green fees are set by City Council, and golf pro shop management and food and beverage operations are contracted out under two separate agreements.

 

On September 30 2020, Council directed the extension of the contracts for the existing operating model, now expiring November 30, 2022, with an option to extend for a further one year to November 30, 2023. This extension allowed time for a third-party review of golf course operations to inform the sourcing strategy for an operator for the 2024 season and to assess the impact and results of increased golf play through 2020 and 2021.

 

The City's operating model has faced a number of challenging trends in recent history, including decreasing rates of play and escalating costs. However, these trends shifted in 2020 as Torontonians navigated the COVID-19 pandemic with a heightened interest in outdoor recreation options. This upward trend in golf rates of play was experienced across the country, and reinvigorated interest in the sport. The impact of COVID-19 also generated discussion regarding how the City's green spaces could best serve Torontonians. The review was expanded to determine how, in the context of changing trends and public needs, to achieve optimal management and continue to deliver affordable and high-quality experiences in a financially sustainable manner.

 

Parks, Forestry and Recreation established the following project goals to guide the review:

 

- Continue to provide access to high-quality and affordable golf in the city;

 

- Improve golf-related amenities (clubhouses, food and beverage offerings, customer service, etc.;

 

- Ensure responsible environmental stewardship and management of the sites;

 

- Advance the parkland and recreational needs of non-golfers with innovative programming, shared use arrangements, and increased access to these spaces where possible;

 

- Advance a winter use strategy to improve access and activation during non-golf season;

 

- Maintain a sustainable and financially responsible model;

 

- Balance multiple and competing desired uses.

 

Strategic adjustments to the operating model were identified to improve user experience and operational performance while maintaining City stewardship of the course lands. The review recommends that the City advance an improved status quo model (hybrid model) whereby the City retains responsibility for site maintenance and Council approval of green fees, while a single contractor operates the golf, pro shop, and food and beverage offerings. The recommended hybrid model enables a shared approach to risk mitigation and revenue generation, with the City controlling the aspects of greatest importance to environmental management, park stewardship, and public access and accessibility. This hybrid model allows Parks, Forestry and Recreation to focus on the operational elements where staff has expertise and experience, while providing safeguards for access, affordability, and financial sustainability. Conversely, the model leverages private sector industry knowledge and expertise to deliver golf operations, improved and flexible programming, and food and beverage at the sites.

 

To advance these findings, this report recommends proceeding with a negotiated request for proposals process for the five City operated courses. This process would allow Parks, Forestry and Recreation to define the desired objectives and outcomes for the golf program in line with the review and allow the market to provide input into the optimal contractual arrangement to achieve them.

 

To address Council's direction to explore alternative and complimentary use potential at the courses, significant analysis and public engagement was completed. The policy and regulatory framework applying to the courses, the Division's strategic plans and objectives, the analysis of each course from the perspectives of "Play", "Place", and "People", and community engagement insights inform the recommendations of this report. Of the alternative and complementary uses explored, some opportunities can be implemented across all five of the courses, some opportunities are course-specific, and a strategic opportunity has been identified at Dentonia Park. The following opportunities should be advanced at all of the courses:

 

- Maintaining and improving golf play;

 

- Enhancing environmental stewardship;

 

- Supporting public access;

 

- Growing the urban forest;

 

- Restoring natural areas;

 

- Identifying opportunities for Indigenous placekeeping, cultural practices, and/or economic opportunities;

 

- Identifying opportunities for improved ravine access and trail connections;

 

- Expanding complementary programming.

 

While there are opportunities to build on current work to improve public access to all the sites without impacting golf play, such as through increased off-season/winter access, Dentonia Park is identified as a unique opportunity to renew the golf offering while also addressing local parkland needs. This report recommends initiating a master planning process at Dentonia Park to better achieve golf outcomes and Parks, Forestry and Recreation strategic goals. Dentonia Park would continue to operate as an 18-hole par-3 course until the master plan is completed and budget is identified to advance any suggested alterations.   Following the completion of the master planning process, Dentonia Park would be redeveloped to deliver an improved golf offering and new local parkland.  The golf offering on the site would be more intentionally designed to deliver learn-the-game and skills development opportunities. Preliminary analysis, confirmed with input from the golf industry, is that a nine-hole par-3 golf course with improved practice amenities would deliver improved golf outcomes. It is anticipated that through this redevelopment the City would better serve golfers and local residents.

 

Staff will advance the negotiated request for proposals as soon as possible in order to ensure that an operator is secured prior to the current contract period's end. It is critical that the City secure a stable operating arrangement in order to maintain access to high-quality and affordable golf and to advance broader project goals and strategic objectives. Discussions with the golf industry have also underlined the importance of bringing certainty to the operations of these important assets. As such, it is anticipated that the negotiated request for proposals will be released in the second quarter of 2022. The specific contractual terms and contract duration are subject to negotiation and flexibility, and will be built out as part of the negotiated request for proposals process. With the contracts set to end in 2023, advancing the negotiated request for proposals is required to ensure continuous service while optimizing opportunities for the use of public assets.

Background Information

(December 17, 2021) Report from the General Manager, Parks Forestry and Recreation and the Chief Procurement Officer, Purchasing and Materials Management on a Review of City of Toronto Golf Courses
https://www.toronto.ca/legdocs/mmis/2022/ie/bgrd/backgroundfile-174599.pdf
Appendix 1 - Operational Review - Executive Summary
https://www.toronto.ca/legdocs/mmis/2022/ie/bgrd/backgroundfile-174600.pdf
Appendix 2 - Alternative and Complimentary Use Analysis
https://www.toronto.ca/legdocs/mmis/2022/ie/bgrd/backgroundfile-174601.pdf
Appendix 3 - Engagement Summary Report
https://www.toronto.ca/legdocs/mmis/2022/ie/bgrd/backgroundfile-174602.pdf

Communications

(January 6, 2022) E-mail from Max Lightstone (IE.Supp)
(January 6, 2022) E-mail from Brad Cundiff (IE.Supp)
(January 7, 2022) Letter from Ryan Logan, PGA Director, Golf Services (IE.Supp)
https://www.toronto.ca/legdocs/mmis/2022/ie/comm/communicationfile-143101.pdf
(January 7, 2022) E-mail from Brenda French (IE.Supp)
(January 7, 2022) E-mail from Jeremy Richardson (IE.Supp)
(January 7, 2022) E-mail from Nicholas Woodbridge (IE.Supp)
(January 7, 2022) E-mail from Michael Neuman (IE.Supp)
(January 7, 2022) E-mail from Scott Foster (IE.Supp)
(January 7, 2022) E-mail from Martyn Lengden (IE.Supp)
(January 7, 2022) E-mail from Mary McMahon (IE.Supp)
(January 7, 2022) Letter from Dylan Reid, Walk Toronto (IE.Supp)
https://www.toronto.ca/legdocs/mmis/2022/ie/comm/communicationfile-143142.pdf
(January 8, 2022) E-mail from Richard Wu (IE.Supp)
(January 9, 2022) E-mail from Catherine Rodd (IE.Supp)
(January 9, 2022) E-mail from Julie Dorsey, President, Humber Valley Ladies Senior Golf (IE.Supp)
https://www.toronto.ca/legdocs/mmis/2022/ie/comm/communicationfile-143145.pdf
(January 9, 2022) E-mail from Monica Tynan Day (IE.Supp)
(January 9, 2022) E-mail from Donna Tuttle (IE.Supp)
(January 10, 2022) E-mail from Richard Fink (IE.Supp)
(January 10, 2022) E-mail from Chris Zelkovich (IE.Supp)
(January 10, 2022) Letter from Councillor Brad Bradford, Beaches-East York, Ward 19, Councillor Gary Crawford, Scarborough-Southwest, Ward 20, Councillor Paula Fletcher, Toronto-Danforth, Ward 14 (IE.Supp)
https://www.toronto.ca/legdocs/mmis/2022/ie/comm/communicationfile-143149.pdf
(January 10, 2022) E-mail from GS Colgrove (IE.Supp)
(January 10, 2022) E-mail from Janet Leverington (IE.Supp)
(January 10, 2022) Letter from Ben Watt-Meyer, Landscape Architect OALA CSLA, on behalf of Design Climate Action (IE.Supp)
https://www.toronto.ca/legdocs/mmis/2022/ie/comm/communicationfile-143159.pdf
(January 10, 2022) E-mail from Stephanie Radcliffe (IE.Supp)
(January 10, 2022) E-mail from Morgan Rubes (IE.Supp)
(January 10, 2022) E-mail from Rick Laprairie (IE.Supp)
(January 10, 2022) Submission from Naomi Faulkner (IE.Supp)
(January 10, 2022) E-mail from Michael Polanyi (IE.Supp)
(January 10, 2022) E-mail from Ekow Stone, School Grown, Foodshare Toronto (IE.Supp)
https://www.toronto.ca/legdocs/mmis/2022/ie/comm/communicationfile-143166.pdf
(January 10, 2022) E-mail from Sharon Jorgensen, President Ladies Youthful Seniors Golf Group (IE.Supp)
https://www.toronto.ca/legdocs/mmis/2022/ie/comm/communicationfile-143200.pdf
(January 10, 2022) E-mail from Tory Maitland (IE.Supp)
(January 10, 2022) Letter from Keagan Gartz, Executive Director, Cycle Toronto (IE.Supp)
https://www.toronto.ca/legdocs/mmis/2022/ie/comm/communicationfile-143187.pdf
(January 10, 2022) E-mail from Matthew Gibbs (IE.Supp)
(January 10, 2022) E-mail from James Zorbas (IE.Supp)
(January 10, 2022) E-mail from Brodie Germain (IE.Supp)
(January 10, 2022) E-mail from Vanessa Fiorido (IE.Supp)
(January 10, 2022) Letter from Rhonda Teitel-Payne, Co-Coordinator, Toronto Urban Growers (IE.Supp)
https://www.toronto.ca/legdocs/mmis/2022/ie/comm/communicationfile-143191.pdf
(January 10, 2022) E-mail from Kevin Northrup and Family (IE.Supp)
(January 10, 2022) E-mail from David Shilman (IE.Supp)
(January 11, 2022) E-mail from Ellen Schwartzel, President, Toronto Field Naturalists (IE.Supp)
https://www.toronto.ca/legdocs/mmis/2022/ie/comm/communicationfile-143160.pdf
(January 10, 2022) E-mail from Hannu Ylanko (IE.Supp)
(January 11, 2022) E-mail from Kali Hutton (IE.Supp)
(January 10, 2022) E-mail from M. McArthur (IE.Supp)
(January 11, 2022) Letter from Ryan Cooney, Bogey to Birdie Business Solutions, Founder and Executive Director for Canadian Youth Golf Alliance, and Kumsa Baker, Canadian Youth Golf Alliance -Youth Employment Program Coordinator (IE.Supp)
https://www.toronto.ca/legdocs/mmis/2022/ie/comm/communicationfile-143237.pdf
(January 11, 2022) E-mail from Sarah Gates (IE.Supp)
(January 11, 2022) E-mail from Toni Paolasini (IE.Supp)
(January 11, 2022) E-mail from Lorraine Sheffield (IE.New)
(January 11, 2022) Letter from Paul M. Taylor, Executive Director, FoodShare (IE.New)
https://www.toronto.ca/legdocs/mmis/2022/ie/comm/communicationfile-143197.pdf
(January 11, 2022) Submission from Chimu Titi, Program Coordinator, Sustainable Living, Access Alliance (IE.New)
https://www.toronto.ca/legdocs/mmis/2022/ie/comm/communicationfile-143199.pdf
(January 11, 2022) E-mail from Richard Gibbs (IE.New)
(January 11, 2022) E-mail from Elisabeth Smitko (IE.New)
(January 11, 2022) E-mail from Tara Duff (IE.New)
(January 11, 2022) E-mail from Brett Quance (IE.New)
(January 11, 2022) E-mail from Mark Bertschmann (IE.New)
(January 11, 2022) E-mail from Michael Wiseman (IE.New)
(January 11, 2022) E-mail from William Oakes (IE.New)
(January 11, 2022) E-mail from Ron Hoff (IE.New)
(January 11, 2022) E-mail from Jeff MacDonald (IE.New)
(January 11, 2022) Letter from Diana Yoon, Climate Specialist, Toronto Environmental Alliance (TEA) (IE.New)
https://www.toronto.ca/legdocs/mmis/2022/ie/comm/communicationfile-143267.pdf
(January 11, 2022) E-mail from Marnie Jennings (IE.New)
(January 11, 2022) E-mail from Craig Labbett (IE.New)
(January 11, 2022) E-mail from Clifford T. (IE.New)
(January 11, 2022) E-mail from Dale Robertson (IE.New)

Speakers

Jeff MacKeigan, Disc Golf
Lucy Falco, Save Toronto Golf Courses
Richard Fink
Craig Loughry, Golf Ontario
Scott Mayo
Beverly McCarthy
Diana Yoon, Toronto Environmental Alliance (TEA)
John F. Campbell, Save Toronto Golf Courses
Michael Kulchycki
Jennifer Allen
Ellen Schwartzel, Toronto Field Naturalists
Loreta Muharuma
Rick Young, Golf Journalists Association of Canada
Monica Tynan Day
Bob Weeks
Malcolm Bromley
Lorne Rubenstein, ScoreGolf
Naomi Faulkner
Jessica Ireland
Susan Gerus
Shah Mohiuddin
Mary McMahon
Dylan Reid, Walk Toronto
Hafeez Alavi
Francis Tersigni
Cameron Jacobs
Donovan Hayden
Maureen McLafferty
Emily Daigle
Yussuf Hussein
Kevin Thistle, PGA of Canada
Jim Pearce
Aaron Davis-Rotman
Elisabeth Smitko
Ryan Logan, Golf Canada
Emil Boychuk
Councillor Shelley Carroll
Councillor Stephen Holyday
Councillor Brad Bradford
Councillor Paula Fletcher

Motions

1 - Motion to Amend Item (Additional) moved by Councillor James Pasternak (Carried)

That the Infrastructure and Environment Committee recommend that:

 

1. City Council direct the General Manager, Parks, Forestry and Recreation to report back to the Infrastructure and Environment Committee on a plan and design to create a safe access and entry way from the bottom of Earl Bales Park (near the storm water ponds) to the Don Valley Golf Course for off season access and use. 

 

2. City Council direct the General Manager Parks, Forestry and Recreation to report back to the Infrastructure and Environment Committee on a data capture and survey plan to determine a general profile of who are using City of Toronto golf courses and how this data can be used to help shape future golf management policy.

Vote (Amend Item (Additional)) Jan-11-2022

Result: Carried Majority Required
Total members that voted Yes: 5 Members that voted Yes are Mike Layton, Jennifer McKelvie (Chair), Denzil Minnan-Wong, James Pasternak, Anthony Perruzza
Total members that voted No: 0 Members that voted No are
Total members that were Absent: 1 Members that were absent are Mike Colle

2 - Motion to Amend Item (Additional) moved by Councillor Mike Layton (Carried)

That the Infrastructure and Environment Committee recommend that:

 

1. City Council direct the General Manager, Parks, Forestry and Recreation to collaborate with the Toronto and Region Conservation Authority to ensure maintenance practices and Vendor operations incorporate best environmental practices (e.g. consider green certification such as the Golf Environment Organisation and Audubon Cooperative Sanctuary Program), and meet annually to review progress and explore opportunities for improvement.

 

2. City Council direct the General Manager, Parks, Forestry and Recreation to advance the implementation of the Parkland and Ravine Strategies on the City-owned golf courses, regarding ravine access and trail connections.

 

3. City Council direct the General Manager, Parks, Forestry and Recreation to prioritize opportunities for tree planting and natural-area restoration with a focus on native species, as part of capital works on the City-owned golf courses and reduce pesticide use in the maintenance of the City-owned golf courses to the extent possible.

 

4. City Council direct the General Manager, Parks, Forestry and Recreation to enhance support of off-season public access to, and expand complementary in-season programming aligned with Indigenous communities' and local communities' priorities on the City-owned golf courses.

 

5. City Council direct the General Manager, Parks, Forestry and Recreation to integrate the City's climate, sustainability, equity, social and partnership objectives as part of the request for proposal and retain the City's ability to advance these objectives throughout the term of the contract in collaboration with the Vendor, partners, and not-for-profit organizations focused on urban agriculture.

 

6. City Council direct the General Manager, Parks, Forestry and Recreation to advance Indigenous placemaking opportunities at the City-owned golf courses as part of future capital, wayfinding and enhancement projects in collaboration with the Indigenous Affairs Office and Aboriginal Affairs Advisory Committee, and other Indigenous partners and communities.

 

7. City Council direct the General Manager, Parks, Forestry and Recreation to develop a staff report on how these recommendations align with the City's recently adopted City's TransformTO Net Zero Strategy by Q1 2023 ahead of awarding the request for proposal.

Vote (Amend Item (Additional)) Jan-11-2022

Result: Carried Majority Required
Total members that voted Yes: 5 Members that voted Yes are Mike Layton, Jennifer McKelvie (Chair), Denzil Minnan-Wong, James Pasternak, Anthony Perruzza
Total members that voted No: 0 Members that voted No are
Total members that were Absent: 1 Members that were absent are Mike Colle

3a - Motion to Amend Item moved by Councillor Jennifer McKelvie (Carried)

That Infrastrucure and Environment Committee delete Recommendation 4

 

Recommendation to be deleted

 

4. City Council direct the General Manager, Parks, Forestry and Recreation to initiate a master planning process for the future of Dentonia Park Golf Course, in consultation with Transportation Services, the Toronto and Region Conservation Authority, local stakeholders, Indigenous communities, golfers, vendors and area Councillors, among others, that reimagines an improved golf offering and increases parkland availability to the public, and to report back to City Council when completed,

 

and replace it with the following recommendation:

 

4. City Council direct the General Manager, Parks, Forestry and Recreation, in consultation with Chief Procurement Officer and any relevant divisions, to maintain the existing 18-hole golf course structure at Dentonia Park Golf Course, while continuing to explore opportunities for further year-round recreation, multi-use arrangements, increased accessibility and affordability for golf use, and access to Taylor Massey Creek trail ravine.

Vote (Amend Item) Jan-11-2022

Result: Carried Majority Required
Total members that voted Yes: 5 Members that voted Yes are Mike Layton, Jennifer McKelvie (Chair), Denzil Minnan-Wong, James Pasternak, Anthony Perruzza
Total members that voted No: 0 Members that voted No are
Total members that were Absent: 1 Members that were absent are Mike Colle

3b - Motion to Amend Item (Additional) moved by Councillor Jennifer McKelvie (Carried)

That the Infrastructure and Environment Committee recommend that:

 

1. City Council direct the General Manager, Parks, Forestry and Recreation, in consultation with relevant divisions and local community organizations, to develop engagement and programming opportunities to increase access to golf programs for underrepresented groups in the sport, including but not limited to low-income, newcomers, women, BIPOC, and 2SLGBTQ+ residents and the accessibility community.

 

2. City Council direct the General Manager, Parks, Forestry and Recreation, in consultation with relevant agencies and divisions, to explore and develop creative opportunities to improve access to Taylor Massey trail ravine from Dentonia Park Golf Course, in consultation with the local Ward Councillors and community.

 

3. City Council direct the General Manager, Parks, Forestry and Recreation, to report to the Infrastructure and Environment Committee, in consultation with local Councillors and the City Clerk, on the establishment of a City Golf Steering Committee.

 

4. City Council direct the General Manager, Parks, Forestry and Recreation, to implement an online payment system for the 2022, or earliest possible operating season following, and to include online payment needs as part of future operational Request for Proposals.

 

5. City Council direct the General Manager, Parks, Forestry and Recreation to identify feasible City golf course locations and install temporary natural skating rinks and trails.

 

6. City Council direct the General Manager Parks, Forestry and Recreation in consultation with the General Manager of Transportation Services and any other relevant divisions, to report back on opportunities for trail connections between the Taylor Creek ravine and Dentonia Park Golf Course, referencing the work previously undertaken as part of the Taylor Creek Park Management Plan and the Taylor Creek Watershed Master Plan by second quarter of 2023, and to seek out any opportunities to accelerate implementation based on additional Ravine Strategy funding from government partners.

Vote (Amend Item (Additional)) Jan-11-2022

Result: Carried Majority Required
Total members that voted Yes: 5 Members that voted Yes are Mike Layton, Jennifer McKelvie (Chair), Denzil Minnan-Wong, James Pasternak, Anthony Perruzza
Total members that voted No: 0 Members that voted No are
Total members that were Absent: 1 Members that were absent are Mike Colle

Motion to Adopt Item as Amended moved by Councillor Jennifer McKelvie (Carried)

Vote (Adopt Item as Amended) Jan-11-2022

Result: Carried Majority Required
Total members that voted Yes: 5 Members that voted Yes are Mike Layton, Jennifer McKelvie (Chair), Denzil Minnan-Wong, James Pasternak, Anthony Perruzza
Total members that voted No: 0 Members that voted No are
Total members that were Absent: 1 Members that were absent are Mike Colle

Point of Order by Deputy Mayor Denzil Minnan-Wong

Deputy Mayor Minnan-Wong, on a Point of Order, stated that he felt the Committee should move on to the next speaker on the list as he felt there had been enough discussion with the current speaker.


Point of Privilege by Councillor Mike Layton

Councillor Layton, on a Point of Privilege, stated that he only wanted to caution the current speaker against discounting others' experience.

Ruling by Councillor Jennifer McKelvie
Chair McKelvie accepted the Point of Order and the Point of Privilege and ruled that the current speaker had acknowledged the points that Councillor Layton had raised in his comments, and that the Committee should move on to the next speaker on the list.

Declared Interests

The following member(s) declared an interest:

Councillor Mike Colle - as his son is employed by Ernst and Young that is undertaking this study for the City.
Written Declaration: https://secure.toronto.ca/council/declared-interest-file.do?id=10596
Source: Toronto City Clerk at www.toronto.ca/council