LONG-TERM STRATEGY

FOR 39 POOLS IN THE

TORONTO DISTRICT SCHOOL BOARD

March 2009
CONTENTS

Executive Summary .................................................................................................. 1

I. Introduction ........................................................................................................ 3

Meet the Aquatics Working Group

Map of 39 Pools
Reasons to Invest in Pools

II. A Cost-Effective Strategy for Pools .................................................................. 8

Findings on Costs
Findings on the Demand for Pool Use
Findings on Equity
Summary of the Analysis

III. Long-Term Sustainable Solution for Pools ...................................................... 15

Capital Recommendations
Operational Recommendations
Management Recommendations
Decision-Making and Governance Recommendations

Appendices

A. TDSB Resolution of April 16, 2008 requesting support from D. Crombie

B. Aquatic Summit Report, May 2008
C. D. Crombie response to J. Campbell, TDSB Chair
D. Aquatic Working Group Participant List
E. Map of Indoor Pools across Toronto
F. Pool-by-Pool Analysis Results
G. Pool Audit Results
H. Let’s Make Waves Testimonials

Pools Report, March 2009 i

 This report was made possible by the efforts of many individuals and
organizations dedicated to finding a long-term sustainable solution to pools in
Toronto. Busy people attended regular meetings and in many cases also served
as voluntary Pool Captains and Co-Captains to help ensure we had the most
accurate information on each pool. Their participation improved our collective
understanding of the state of these 39 pools, the communities they’re connected
to and the value they provide. They also helped significantly develop our
thinking around programming, governance, and communications issues.

We appreciate the contribution that Canadian Tire and its Foundation for
Families have made to the process, particularly in the design and delivery of
the Aquatic Summit in May 2008. Also the YMCA of Greater Toronto
generously provided meeting space for Aquatic Working Group meetings and
outstanding logistics support.

A special note of thanks to the Toronto District School Board staff for their
many hours of support in providing and verifying data in developing this
report.

The strength of this report is rooted in the process through which the
recommendations were developed. It was a collective and collaborative effort –
an effort which we all believe must continue to ensure the long term
sustainability of our pools as celebrated community assets.

If you have any questions or comments on this report, please get in touch with
us through the Toronto Lands Corporation at mriley.tlc@tdsb.on.ca.

ii Pools Report, March 2009

EXECUTIVE SUMMARY
In April 2008, the Toronto District School Board (TDSB) asked David Crombie, Chair of the
Toronto Lands Corporation, to propose a long-term sustainable solution for the continued use of
the Board’s pools. A total of 23 pools had been slated for closure in June of 2008, with an
additional 16 to follow in June 2009.

The Province of Ontario’s Ministry of Health Promotion agreed to support the pools for one year
while solutions for the pools were being explored. That year will be complete in the June of 2009.

This report proposes a solution for June 2009 and onward. It is a solution that has been
developed over the past several months by David Crombie and the Aquatics Working Group. The
solution is based on: professionally compiled information on the capital and operating costs of the
pools; promising partnerships to increase the revenue generated by the pools; current policy
priorities expressed by all three levels of government; and a proposed governance/management
model.

HIGHLIGHTS OF RECOMMENDATIONS:
 Reduce costs by investing in 24 pools with some/significant community use and closing 7
pools that are currently prohibitive to repair. Costs will also come down through opportunities
to achieve energy efficiencies and reduced labour costs.

 Increase revenues by working with community partners to significantly increase pool use.
Revenues will also increase through adjustments to permit fees, enhanced community and
TDSB programming, and expansion of provincially supported aquatics programs. Creation of
an endowment fund is also recommended to enable philanthropic contributions. Sponsorship
opportunities also need to be pursued.

 Strengthening management of the pools. This includes asking the TLC to continue to work
with the AWG over the next five years to oversee and implement the recommendations of this
report and develop a long-term governance strategy.

Delivering on the recommendations in this report will require the collaborative efforts of a
number of players. We recommend the following roles and responsibilities for all levels of
government and key stakeholders:

 The Province of Ontario support these pools as part of their commitment to investing in
infrastructure. This helps meet the Provincial need for “shovel-ready” infrastructure projects,
and could fulfill the Ministry of Energy and Infrastructure policy agenda by funding the
capital cost for the community pools with a capital contribution of $12 million over 5 years.
This could be accelerated if there was an interest in completing the work sooner. There is also
an important role for the Province in funding programs (e.g. Swim to Survive, Focus on Youth
Toronto and the Community Use of Schools) that continue to offset the operating costs of the
pools and provide for continued program delivery.

 The TDSB expand the use of these pools through increased aquatics programming as part of
the curriculum, and support the costs associated with the use of the pools as part of the
curriculum. This cost will decrease annually as capital improvements are completed, solar
thermal technology is in place and community use is increased. Continue to work with TLC to
set up a separate cost center for each pool.

Pools Report, March 2009 1

  The Toronto Lands Corporation (TLC), in conjunction with the AWG, continue to
oversee the pools on behalf of the community and the TDSB. Be responsible for
management of the capital upgrades outlined in the Altus Group Cost Consulting
report and continue working with the TDSB fstaff to establish operating cost centers
for each pool. Be responsible for managing and monitoring a solar thermal pilot
project and report back on the viability of expanding the number of sites in future
years.

 The Government of Canada consider providing support to pools as part of

Recreation Infrastructure Canada (RInC), in particular for supporting the 8 pools on
probation and the additional 33 TDSB pools. RInC has $500 million to renew and to
build facilities over 2 years (to March 31, 2011). This program provides matching
dollars (50-50) and is designed to partner with provinces, municipalities, not-for-
profits, private partners, universities, aboriginal communities, and others. It is
designed for shovel-ready projects that can start within 2-10 months.

 The Community play a central role in generating demand for pool use and
expanding aquatic programming opportunities – both which contribute directly to
increasing revenues and covering operational costs. Work with the TDSB to establish
a charitable foundation to support the community pools.

 The City of Toronto continue delivery of community programming in 33 TDSB

pools (agreement in place until 2011). Fulfill previous commitment to complete an
indoor pool analysis for the City of Toronto, including consideration of school pools
in that analysis, and drawing on the knowledge/expertise of the AWG to help shape
the future of aquatics in Toronto.

2 Pools Report, March 2009

I. INTRODUCTION
In April 2008, the Toronto District School Board (TDSB) asked David Crombie, Chair of
the Toronto Lands Corporation, to propose a long-term sustainable solution for the
continued use of the Board’s pools. A total of 23 pools had been slated for closure in June
of 2008, with an additional 16 to follow in June 2009.

David Crombie and the Toronto Sports Council held an Aquatic Summit on May 14,
2008, bringing together over 60 participants with an interest in the matter. The meeting
report is attached (Appendix B). The input from the meeting was used to develop a
transition plan to keep the pools open for a year while a community based,
long-term strategy for the use of the pools could be developed. The Pool Living Next to Water…
Transition Plan letter is attached (Appendix C). “In Canada, we are endowed
with the largest proportion of
The Province of Ontario’s Ministry of Health Promotion agreed to support fresh water in the world. In
addition, we are surrounded on
the pools for one year while solutions for the pools were being explored. 3 sides by ocean. In the
That year will be complete in June 2009. summer, we take refuge against
the heat, in water - lakes, pools,
ponds, rivers, splash pads and
This report proposes a solution for June 2009 and onward. It is a solution oceans. In the winter, we need
that has been developed over the past several months by David Crombie and to be aware of the effects of
cold water and thin ice, and at
the Aquatics Working Group. The solution is based on: all times - even in large cities –
 Professionally compiled information on the capital and operating flooding. Learning to swim is a
costs of the pools; necessary learning experience
for all Canadians”.
 Promising partnerships to increase the revenue generated by the Laura Silver, Provincial
pools; Coordinator
 Current policy priorities expressed by all three levels of government,
Restricted Registration Pilot for
Ontario Medical Residents 
and the TDSB; and
 A proposed governance/management model.

Meet the Aquatics Working Group

The Aquatics Working Group (AWG) was created in September 2008 and is
made up of individuals and organizations who are strongly motivated by the possibility of
creating a well thought out and accessible aquatics program, a more generous and
vigorous community use of schools, and a determination to employ new approaches to
financial and environmental sustainability. Over 180 people representing a wide range of
interests and organizations are involved, with a core group of over 40 that have met five
times over the last six months to develop a community-based, long term strategy for the
use of pools.

The AWG includes swim clubs, aquatics instructors, parent councils, trustees,
representatives from the City, Province, and TDSB, as well as organizations like the
YMCA of Greater Toronto, the Canadian Tire Foundation for Families, the community
group Let’s Make Waves (see Appendix H), the Lifesaving Society, and others (see full
list in Appendix D). Agendas and minutes from all AWG meetings are available online at
www.torontosportscouncil.com . The work of Mr. Crombie and the AWG has been
supported by Karen Pitre, consultant to the Toronto Lands Corporation (TLC), and
Nicole Swerhun (Facilitator).

Pools Report, March 2009 3

 Map of 39 Pools

(for map of all indoor pools, see Appendix E)

Overview of the 39 Pools

The 39 pools that are the focus of this report are located in schools across the city. They were
originally built by the taxpayers of the former Metropolitan Toronto, now the City of Toronto, and
are owned and operated for them by the Toronto District School Board.

These pools are located in high schools, middle schools, and elementary schools. Some are in
stand-alone buildings; others are integrated into the school. Some are used heavily by the
community; others are used heavily by the school; and some are used by both. Some have been well
maintained, while others require capital upgrades.

4 Pools Report, March 2009

REASONS TO INVEST IN POOLS
There are a number of reasons why it is critical to protect and invest in the
Toronto City
contribution that pools make to our communities and quality of life in Toronto. Summit Alliance &
Here are some key reasons: Toronto Board of
Trade
1. In times of economic uncertainty, it is vital to the community to repair, “The fate of the pools
improve, and better utilize existing assets. It is also important to create has been a political hot
opportunities for people to come together to participate in low cost activities potato tossed between
the board, the province
in public places such as schools. Pools in schools are community assets that and the city for several
bring people together and help build relationships that individuals and years. Many of the
pools are old and
communities rely on. overdue for repairs
while newer ones also
2. Swimming meets multiple public policy priorities for health and need updates. A retrofit
of the pools for
community safety. Not only is swimming a lifetime activity that develops community use would
superior coordination, improves posture, flexibility, muscular endurance, make them accessible
strength and balance – it is also one of many types of programming that keep for several thousand
students and adults.”
our children active and healthy.
Globe & Mail
January 2009
Recent reports by People for Education (2008 Annual Report on Ontario’s
Public Schools) and The Honourable Roy McMurtry and Dr. Alvin Curling
(The Review of the Roots of Youth Violence, 2008) reference the important
role that schools have as community hubs, which is consistent with the goals
Review of the Roots of
of the Provincial Community Use of Schools Program. The Youth Violence
McMurtry/Curling report recommends that the Province do much more to 2008
provide full access to schools for community activities, and that “the “Shortage of space puts
government recognize the value of sports and arts in supporting the learning, youth on the streets,
development and creativity of youth”. exposing them to negative
peers and negative
interactions with residents
Toronto schools also have had a long history as community hubs and many and the police. At the
groups advocate invigorating and expanding this role. Organizations same time, it deprives
them of the positive
supporting hubs, serving the social, economic, and cultural needs of development that comes
communities include the United Way, the Toronto Arts Council, the Youth from engagement in
sports or arts or
Challenge Fund, and Canadian Heritage. People For Education, for example, involvement with positive
note that: “schools and school buildings have the potential to be centres of peers, youth workers and
communities….they should have the capacity to provide every student and community leaders in
activities that would build
every student’s family with a range of services, with a sense of belonging, their skills, confidence,
and with an equitable chance for success”. optimism and belief in
their futures.”

There are also a number of ways that swimming helps meet multiple public The Honourable Roy
health priorities (see box on next page for a snapshot on health). McMurtry &
Dr. Alvin Curling

Pools Report, March 2009 5

 A Snapshot on Health…
Toronto residents of all ages need opportunities to learn to swim and to maintain their fitness. Swimming is an
activity that helps people stay healthy and active throughout their lives. These outcomes are key to several public
policy goals:

 A policy goal of the Ontario government is to improve population health. In 2006, the Ministry of Health
Promotion and Longterm Care published Ontario’s Action Plan for Healthy Eating and Active Living
(OAPHEAL). The Plan responded to a report from Ontario’s Chief Medical Officer of Health (2004) that
warned of an epidemic of unhealthy weights in the province. The report revealed that both children and youth
from low-income families and those who were newcomers to Canada were less physically active than their better
off and Canadian-born peers. It goes on to urge “all levels of government, the health sector, the food industry,
workplaces, schools, families and individuals to become part of a comprehensive province-wide effort to change
all the factors that contribute to unhealthy weight.”

 Childhood obesity is an emerging health crisis in Ontario. Today, twenty-eight per cent of children in the
province are overweight or obese, a proportion that has tripled over the past 15 years (HSFO Annual Report,
2008). Children need to be active 60 to 90 minutes a day, most days of the week, to support optimal health and
development. More than half of Canadian children between the ages of 5 and 17 are not sufficiently active.
Fewer than half of Canadian children walk to school. And, according to Active Healthy Kids Canada, all
children, regardless of background, are spending too much time in front of screens. The health risks to
overweight and obese children include juvenile onset of ‘adult’ diseases such as heart disease, high blood
pressure and Type 2 diabetes.

 Obesity is estimated to cost Ontario $1.6 billion each year (Katzmarzyk and Janssen, 2003).

 The cost savings associated with physical activity and healthy weight is staggering. They have been
reported to prevent 80% of coronary heart disease (Hu et al, NEJM, 2001), 90% of Type 2 diabetes (Hu et al,
NEJM, 2001), 30-40% of all cancers (World Cancer Research fund, 2006), and halt the progression of
osteoporosis (Osteoporosis Canada, 2006).

 The number of seniors in Canada is expected to increase dramatically in the next decade. Good health in
seniors, as in any age group is related to physical activity and healthy weight (Shields and Martel, Statistics
Canada, 2006).But more than half of all seniors are inactive and the rate of obesity in this group has increased at
a rate of 60%, over the past 10 years (Heart and Stroke Foundation, 2006 Report Card on Health).

 OAPHEAL reported that a lack of recreation facilities and a lack of awareness about existing facilities in the
community are part of the problem of inactivity across the life span. Their report recognizes that the habits and
attitudes of children last a lifetime and suggests that focusing fitness promotion now on children and youth will
make for a future generation of physically active citizens with healthy weights. An Ontario Ministry of Health
Promotion (OMHP) initiative in this area is to identify ways to make it easier for children and youth to be
physically active.

 ACTIVE2010: Ontario’s Sport and Physical Activity Strategy (OMHP; 2005) states that “swimming and aqua
fitness are great aerobic activities that also build strength. Because you’re moving through water instead of air
your muscles work harder. Add some stretches before and after you swim and you’ve go a complete workout.”

 The Community Use of Schools program, led by the Ontario Ministry of Education in collaboration with
OMHP, promotes the reduction of fees for community groups to use school facilities for recreational purposes.

6 Pools Report, March 2009

3. Keeping these pools open is important to ensure equity. Equity has long
been a central value in Ontario. Coupled with access, equity recognizes and
accommodates differences so that individual and community potential can be
realized. These pools contribute to equity:

 Through geographic proximity to residents (to reflect the density of

neighbourhoods and school enrolment, providing access within walking
distance for residents);
 Through their location in schools (which facilitates access for children and “I swim to keep fit,
youth to basic instruction during school hours); pain-free and
 By offering the opportunity to acquire an essential life skill (especially to happy…Keeping
pools open means
residents from countries in which water is not a routine part of recreation); keeping the
and community healthy,
a smart way to save
 By serving the physical and recreation needs of people with mobility on health-care
limitations. costs.”
Marici Dillon,
Age 61
4. These pools make an important contribution to the community. Students
are an important part of any community, as are the families, adults and seniors
who live in the areas around school pools. People tend to stay in their
community to use nearby resources (especially those who have limited
transportation options). This is a reflection of the neighbourhood and
community diversity which in turn allows for community engagement and
capacity building. Swim programming offered through the TDSB physical
education program, after school programs, and community use take some of the
strain away from the already overburdened City pools.

5. These pools provide training facilities for swim clubs who train and
compete throughout the City. Toronto is home to over 20 competitive and
recreational swimming clubs, the largest of which are North York Aquatic
Club, North Toronto Aquatic Club, Toronto Swimming Club and Scarborough
Swimming Club. Pools also offer training facilities to other users like the
Scarborough Diving Club, Scarborough Shadow Water Polo, Toronto
Synchronized Swimming Club, Water Line Sports, Water Sports Scuba, York
Mavericks Water Polo, and dragon boaters.

Pools Report, March 2009 7

 II. A COST-EFFECTIVE STRATEGY FOR POOLS

This analysis assessed pools for cost-effectiveness. The principle factors

considered for each pool were: the state of repair of each pool; the use of
each pool; and equity in terms of geographic and socio-economic access to a
pool.

The data to inform our decision-making was drawn from a number of

sources, including Altus Group Cost Consulting (cost consulting engineers
commissioned by the Toronto Lands Corporation to visit all 39 pools and
update the 2002 Life Cycle Cost Report previously commissioned by the “As social worker, I
TDSB), surveys completed by volunteer Pool Captains and Co-Captains who believe that our
were members of the AWG (and worked with school administrators, school pools are
invaluable
custodial staff, aquatics staff and others to collect data on each pool), the municipal resources
TDSB, and others. that provide broad
access to
community
Our approach to analyzing each pool through each “lens” was as follows: members for whom
aquatics would
otherwise be
 The state of repair of each pool. The condition of each pool was inaccessible. We
assessed and a five year capital plan was prepared by Altus Group Cost have an established
Consulting. The pools were ranked from the most to the least expensive and functioning
infrastructure that
to repair. If a pool’s projected capital costs are in excess of $400,000 allows people to
over 5 years, it is deemed an expensive pool and there would have to be enjoy recreation,
exercise and
other reasons to support its continuing operation. community-
building.”
 The use of each pool. Based on the information received by pool Raquel Cader M.S.W.,
captains, community use was reviewed for each pool. Current permit use R.S.W.

was collected and we also looked at historic use to determine why a pool
was used in the past but was no longer utilized by the community. Some
of the reasons for a drop in use were disrepair, cost of permitting,
organizational restructuring, and receptivity of the school community. We
also sought to determine future use should the pools be repaired and
available at a reasonable rate. If a pool did not have any community use
and it cost in excess of $400,000 over 5 years, then the next consideration
was whether there were reasons of equity that should be included as part
of the analysis.

 Equity in terms of geographic and socio-economic access. Certain

pools are in parts of the city that have little or no other recreation
opportunities. The pool may not have been utilized by the community in
the recent past but there has never been a community discussion as to how
to bring the community into the pool – whether because of organizational
restructuring, programming considerations, safety concerns or simply
because the community was not aware of a pool in the school. In
addition, some of the pools are specially equipped with pool lifts, ramps
and elevators that make them ideal for special education, for seniors
and/or for people with physical challenges.

See pool by pool analysis (Appendix F).

8 Pools Report, March 2009

 FINDINGS ON COSTS
The operating costs of the 39 pools (utilities, caretaking, and supplies) were reviewed in
detail.
Key findings related to OPERATING COSTS included:
 Existing square footage data does not provide an accurate methodology to reflect costs
on a pool-by-pool basis. Note that this practice of allocating costs on the basis of square
footage is in the process of being updated so that costs can be tracked on a pool-by-pool
basis. Further work is required to determine whether the underground pipe tunnel areas,
currently included in the calculation of square footage, impacts on stated costs of the
pools.
 Pool operating costs (utilities, caretaking, and supplies) are currently allocated based on
the square footage of the pool area, including change room and corridor areas. This can
be problematic because in some pools, change rooms and corridors would be in use even
without an operational pool. As a result, adjustments were made to the pool area square
footage where appropriate (this was done in close consultation with the TDSB). For
many pools the number of square feet used to allocate operating costs was reduced. These
reductions in square footage, in turn, led to a reduction in the portion of operating costs
allocated to pools. There are a number of pools that still need to be reviewed using this
analysis.
 There is no way to differentiate between the operating costs of newer pools with
upgraded equipment versus pools that have not been upgraded. More energy efficient
pumps and boilers have been installed in some pools and not others and these efficiencies
cannot be identified unless the costs of each pool are tracked individually. To understand
costs of utilities, the data would need to be collected and analyzed over a 12 month
period. Utilities are a key consideration since the allocated cost for heating the pools is
one-third to one-half of the costs associated with operating each pool.
 Savings are experienced by those pools built in the basement of schools versus those
pools built as stand alone facilities. Pools that are built in the basement of schools are
more cost-effective to heat than stand-alone pools. This difference is obscured when the
operating costs of pools are calculated on a system-wide, square footage basis.
 Operational costs will continue to exist even when a pool closes. This is important
because previous work assumed 100% savings of pool-related costs should the 39 pools
be closed. However in some cases, even though the pool would be closed, the school still
needs the space to deliver its mandated curriculum. The pool space would be converted
to a gym or other use, which would still have operational costs associated with it. Also
even if a pool is closed and the space is moth-balled, some basic operational carrying
costs would continue to be incurred.
Key findings related to CAPITAL COSTS included:
 The capital costs to keep the 39 pools in a state of good repair have been updated. Altus
Group Cost Consulting completed a pool audit after visiting each of the 39 pools. The
complete report is attached as Appendix G. The Life Cycle Report completed in 2002
was used as the base case and the Altus Group Cost Consulting report indicates whether
extensive, modest, minor or no work was done on the pool since 2002. The result of this
analysis is a five year capital plan for all 39 pools. In many cases, the most heavily used
pools require the most work.
The TDSB pool specific operating and capital costs follow on the next pages.
Pools Report, March 2009 9
 Pool-by-Pool Operating Costs
Proposed
TDSB Operating TDSB Operating
Cost to Permit Hours
Costs* Costs*
Community 2009-2010
2006-2007 2009-2010
2009-2010
1 Allenby Jr PS $95,000 $80,543 $25,440 565
2 A.Y. Jackson SS $112,000 $113,242 $113,242 2840
3 Bickford Centre $202,000 $187,670
4 Bloor CI $122,000 $93,595
5 Carleton Village Jr PS (North) $137,000 $118,589 $118,589
6 Central Commerce CI $119,000 $83,898
7 Central Technical $213,000 $164,944 $164,944 250
8 Danforth C & TI $81,000 $60,841
9 Deer Park Jr & Sr PS $141,000 $110,842 $57,185 235
10 Downsview SS $112,000 $102,461 $102,461
11 Earl Grey Sr PS $152,000 $121,494 $121,494
12 Fern Avenue Jr & Sr PS $112,000 $83,047 $83,047 150
13 Forest Hill CI $243,000 $178,281 $178,281 356
14 George Harvey CI $183,000 $147,840 $147,840
15 George S Henry Academy $107,000 $97,990 $97,990
16 Glenview Sr PS $203,000 $170,639 $93,629 1040
17 Harbord CI $189,000 $127,969 $84,418 500
18 Humberside CI $138,000 $110,127 $54,861
19 Jarvis CI $193,000 $153,903 $153,903 25
20 Keele Street Jr PS $183,000 $145,880 $145,880 540
21 Kensington CS Jr/Horizon Alt. Jr $129,000 $108,110 $108,110
22 Lawrence Park CI $142,000 $110,079 $56,919 1032
23 Malvern CI $128,000 $106,955 $46,234
24 Monarch Park CI $168,000 $144,488 $144,488
25 Newtonbrook SS $122,000 $110,355 $110,355 1048
26 North Toronto CI $116,000 $88,509 $88,509
27 Northern SS $99,000 $75,144 $75,144 145
28 Oakwood CI $130,000 $93,317
29 Parkdale CI $113,000 $86,442
30 Queen Alexandra Sr PS/S.E.E.D. Alt $108,000 $80,320 $80,320
31 R H King Academy $147,000 $150,342 $150,342 1274
32 Riverdale CI $197,000 $148,796 $148,796 800
33 Rosedale Heights School of the Arts $202,000 $169,210 $169,210 250
34 SATEC at W A Porter CI $163,000 $146,692 $146,692
35 Stephen Leacock CI/John Buchan Sr PS $184,000 $158,981 $74,269 350
36 Ursula Franklin Academy at W. Tech $95,000 $62,867
37 Western Technical-Commercial School $180,000 $153,303 $81,026
38 Westview Centennial SS $177,000 $145,752 $64,557 350
39 Winona Drive Sr PS $194,000 $141,164 $141,164
Total $5,831,000 $4,734,621 $3,429,339 11,750
Notes: $55/hr. - blended rate* $646,250*
pool required to timetable the school
pool not required to timetable the school

* Does not include the cost of aquatic instructors

.

10 Pools Report, March 2009

 Pool-by-Pool Capital Costs
(see Appendix G for Altus Group Cost Consulting Report)

Projected Capital Expenditures

School Name Immediate Year 1 Year 2 Year 3 Year 4 Year 5 Total
1 Allenby Jr PS O $0 $102,700 $159,900 $115,050 $84,500 $6,500 $468,650
2 AY Jackson SS O $0 $139,100 $165,750 $109,200 $99,450 $126,100 $639,600
3 Bickford Centre $16,500 $167,700 $240,500 $78,650 $39,000 $180,700 $726,050
4 Bloor CI $0 $152,100 $133,250 $78,650 $156,000 $191,100 $711,100
5 Carleton Village Jr PS P $0 $71,500 $70,850 $82,550 $78,000 $26,000 $328,900
6 Central Commerce Collegiate $243,500 $110,000 $54,500 $15,000 $28,000 $0 $451,000
7 Central Technical School O $126,100 $145,600 $81,900 $105,950 $22,100 $0 $481,650
8 Danforth C & T Institute $123,500 $196,950 $37,700 $55,250 $75,400 $22,750 $511,550
9 Deer Park Public School O $0 $81,250 $87,750 $117,000 $23,400 $74,100 $383,500
10 Downsview SS O $0 $131,300 $114,400 $106,600 $45,500 $53,950 $451,750
11 Earl Grey Sr PS P $102,700 $235,950 $61,750 $50,050 $75,400 $0 $525,850
12 Fern Avenue Jr & Sr PS O $118,950 $93,600 $36,400 $39,000 $32,500 $0 $320,450
13 Forest Hill CI O $0 $139,100 $165,750 $109,200 $99,450 $126,100 $639,600
14 George Harvey CI O $0 $26,000 $44,200 $60,450 $136,500 $84,500 $325,650
15 George S Henry Academy P $0 $109,850 $114,400 $103,350 $130,000 $74,100 $531,700
16 Glenview Senior PS O $36,400 $108,550 $180,700 $99,450 $58,500 $0 $483,600
17 Harbord CI O $0 $67,600 $48,750 $16,900 $37,050 $102,700 $273,000
18 Humberside CI P $0 $143,000 $208,000 $126,750 $72,800 $115,050 $665,600
19 Jarvis CI O $0 $115,050 $81,250 $177,450 $65,000 $74,100 $512,850
20 Keele Street Jr PS O $13,000 $152,100 $154,050 $92,300 $124,800 $100,100 $636,350
21 Kensington Community School P $0 $23,400 $23,400 $31,200 $52,000 $0 $130,000
22 Lawrence Park CI O $120,250 $136,500 $104,000 $100,100 $35,100 $6,500 $502,450
23 Malvern CI O $0 $68,250 $68,250 $68,900 $45,500 $74,100 $325,000
24 Monarch Park O $26,000 $114,400 $174,850 $217,100 $47,450 $97,500 $677,300
25 Newtonbrook SS O $0 $111,800 $53,950 $81,900 $27,950 $117,000 $392,600
26 North Toronto CI P Closing School Construction Closing
27 Northern SS O $91,000 $100,750 $52,000 $78,000 $63,700 $93,600 $479,050
28 Oakwood CI $130,000 $243,100 $128,375 $97,500 $42,900 $0 $626,925
29 Parkdale CI $0 $137,150 $105,300 $108,550 $130,000 $84,500 $565,500
30 Queen Alexandra Sr PS P $0 $174,850 $195,000 $81,250 $58,500 $148,850 $658,450
31 RH King Academy O $0 $76,050 $120,900 $103,350 $130,000 $80,600 $510,900
32 Riverdale CI O $0 $0 $44,850 $58,500 $15,600 $52,000 $170,950
33 Rosedale Heights O $0 $208,650 $107,900 $143,650 $143,000 $106,600 $709,800
34 Stephen Leacock CI O $0 $149,500 $96,850 $81,250 $76,700 $0 $404,300
Ursula Franklin Academy@W
35 Tech $0 $192,400 $144,300 $121,550 $130,000 $91,000 $679,250
36 WA Porter CI O $0 $151,450 $140,400 $186,550 $67,600 $49,400 $595,400
37 Western Tech O $0 $49,075 $65,000 $56,550 $29,250 $120,900 $320,775
38 Westview Centennial SS O $0 $134,550 $124,150 $122,850 $130,000 $119,600 $631,150
39 Winona Drive Sr PS P $0 $35,750 $36,790 $42,250 $32,500 $20,800 $168,090
$1,147,900 $4,596,625 $4,028,015 $3,519,800 $2,741,100 $2,620,800 $18,616,290
Recommendations:
O - 24 open pools
P - 8 pools on probation
- 7 pools for closures

Pools Report, March 2009 11

 FINDINGS ON THE DEMAND FOR POOL USE
 Community use is being limited by above-market permit fees, especially when
compared to other pools (see comparison tables below). This is the message from all
community groups participating in the AWG. They describe scenarios where high
permit fees have meant many of the pools have been empty while clubs are on waiting
lists looking for pool space at a reasonable cost. Only recently, when the permit rate
for Riverdale was dropped, could the Toronto Swim Club afford the fee and permit
the pool.

Key reasons for the high fees include the fact that TDSB policy requires that permit
holders pay 100% of the cost for the pool despite the fact that the school uses the pool
for programming. If a school requires the pool for programming purposes, the
incremental cost is a more appropriate figure to charge back and it distributes the cost
between the school and the community user groups. High fees are also connected to
additional caretaking charges that are applicable weekday mornings before 7 am and
on the weekends if no other permit activity is registered in the building and/or if
caretaking services are required to facilitate the pool permit.

TDSB Pool Fees

Registered
Youth Adult
Type of Facility Non-Profit
$/hr $/hr
$/hr
Pool (under 6,000 sq. ft.) 40.00 52.00 65.00
Pool (6,001-10,000 sq. ft.) 70.00 86.00 105.00
Pool (10,001-14,000 sq. ft.) 95.00 120.00 145.00
Pool (over 14,000 sq. ft.) 125.00 155.00 185.00

Comparative Pool Fees

Cost per
Pool Number of Lanes Cost per hour
hour/lane
Keele St. (TDSB – youth rate) 6 $125.00 $21.50
Terry Fox (Mississauga) 6 $71.00 $11.83
Town of Markham $75.50
U of T $64.00
U of T – Mississauga 8 $60.00 $7.50
Gus Ryder –City 10 $45.00 $4.50

12 Pools Report, March 2009

  Demand for community use limited by present uncertainty about pool closures. This
uncertainty leaves the aquatic community with no capacity to plan for growth. Given a
three-five year commitment, the aquatic groups will be able to develop sustainable
programming which provides for growth. They would be able to advertise in advance
and thus have a better sense of demand for the long term.

 Demand is limited by lack of awareness about pools in schools. Some communities are
unaware that a pool exists in their neighbourhood school and that it is available to
permit. Moreover, should they wish to permit the pool, there is no program support
(lifeguards, swim instructors).

FINDINGS ON EQUITY
Each of the 39 pools was also reviewed through an equity “lens”. Key findings related to
equity include:

 Location. Some of the 39 pools under review are located in close proximity to one
another. Others, especially those in the northern and eastern parts of the city are, in
many cases, the only pools in the area. Our analysis considered the significant and
detrimental impact of removing these pools.

 Underserved areas. Consideration was given to the proximity of each of the 39 pools to
neighbourhoods identified by agencies as underserved (City of Toronto, United Way of
Toronto, Toronto Community Foundation, etc.).

 Special pool features. Aquatic recreation and swim instruction provide unique
opportunities for those with mobility limitations to exercise and enjoy their physical
capabilities. Presently, the TDSB has several pools equipped with devices to assist and
enhance use by swimmers with physical challenges.

 Competitive sport requirements. Pools that were designed to meet the needs of
competitive sports were also considered (e.g. 25 m pool).

Pools Report, March 2009 13

 SUMMARY OF THE ANALYSIS

Generally, pools are easier to make viable if they need less capital to continue
operations, are required by the school (in order to program students), are well used by
the community, and provide access independent from the school.

In addition to the equity concerns noted previously, there are also of number of other
pool specific considerations that informed the analysis: Special Education program
needs; recent infrastructure upgrades; use by swim teams and summer camps; and
competition-level equipment.

Some/Significant
Prohibitive to Repair Probationary Pools
Community Use
7 pools 8 pools
24 pools

Bickford Center Allenby JPS Carleton Village Jr PS

Bloor CI* AY Jackson SS Earl Grey Sr PS
Central Commerce CI Central Technical School George S Henry Academy
Danforth C&TI Deer Park PS Humberside CI
Oakwood CI* Downsview SS Kensington CS
Parkdale CI* Fern Jr Sr PS North Toronto CI
Ursula Franklin Academy Forest Hill CI Queen Alexandra Sr PS
George Harvey CI Winona PS
There pools require Glenview Sr PS
significant capital investment Harbord CI In a few cases these pools
and did not have significant Jarvis CI require the least capital (i.e. in
community use or geographic Keele Street Jr PS the best shape).
equity. Of these, 3 (with an Lawrence Park CI
asterisk*) are required to Malvern CI, In others, the pool requires
timetable the school and Monarch Park CI upgrades but is not well used
therefore the TDSB will have Newtonbrook SS by community groups
to convert these to other Northern SS (although they may have had
space. RH King Academy use in the past).
Riverdale CI
Rosedale Heights These pools will be put on
Stephen Leacock CI probation and given a timeline
WA Porter CI to develop community demand
Western Tech for their use.
Westview Centennial SS

These pools are permitted for

close to 8000 hours currently
and the demand is much
higher and will be increased
over time.

The current incremental

operating budget for the 24
pools is $3.5M with a revenue
stream of $400,000.

14 Pools Report, March 2009

III. LONG-TERM SUSTAINABLE SOLUTION FOR POOLS

CAPITAL RECOMMENDATIONS

The Province of Ontario

 Invest in the 24 pools with some/significant community use and ensure they remain as
part of the aquatic infrastructure in the City of Toronto for at least five years. For this
period, the Province has a key role in addressing the capital budget of $12 M required
for these pools (includes metering, signage and exterior lighting).

 Support these pools as part of their commitment to investing in infrastructure. This

helps meet the Provincial need for “shovel-ready” infrastructure projects, and could
fulfill the Ministry of Energy and Infrastructure policy agenda by funding the
capital cost for the community pools with a capital contribution of $12 million over
5 years. This could be accelerated if there was an interest in completing the work
sooner.

Projected Capital Expenditures

Immediate Year 1 Year 2 Year 3 Year 4 Year 5 Total

Open (24 pools) $531,700 $2,602,925 $2,473,900 $2,447,250 $1,640,600 $1,665,950 $11,362,325
Probation (8 pools) $102,700 $794,300 $710,190 $517,400 $499,200 $384,800 $3,008,590
Total (32 pools) $634,400 $3,397,225 $3,184,090 $2,964,650 $2,139,800 $2,050,750 $14,370,915

Note: For the open pools, there are costs associated with the need to meter each pool, provide signage and exterior
lighting. The cost per pool is estimated at: $10,000 (exterior lights) + $5,000 (signage) + $30,000 (metering) for a
total of $45,000 per pool or $1,080,000 for the 24 Open pools.

The Government of Canada

 Provide infrastructure funding for appropriate pools on probation and remaining 33

TDSB pools as part of Recreation Infrastructure Canada (RInC). RInC has $500
million to renew and to build facilities over 2 years (to March 31, 2011). This
program provides matching dollars (50-50) and is designed to partner with
provinces, municipalities, not-for-profits, private partners, universities, aboriginal
communities, and others. It is designed for shovel-ready projects that can start
within 2-10 months.

 For the 8 “probationary” pools, we recommend that there are no immediate

significant capital upgrades until the community demonstrates demand.

“Building a strong and healthy country starts at the community level,” said Tony
Clement, Minister of Industry. “In the midst of global economic uncertainty, these
strategic investments in our communities show that our Government is taking
action to boost our economy and help create a better future for Ontarians and for
Canadians.”

Pools Report, March 2009 15

 OPERATIONAL RECOMMENDATIONS

TDSB to provide operational funding:

 The TDSB annual contribution would be $3.5 million (less permit revenue). This
includes the cost of its own program commitments excluding aquatic instructors.
This cost should decrease annually as capital improvements are completed, solar
thermal technology is in place, and community use is increased.

MANAGEMENT RECOMMENDATIONS

Reduce costs by:

1. Decreasing the number of pools*
 Close 7 pools that are currently prohibitive to repair and refer them to the City of
Toronto for inclusion in their review of the City’s Indoor Pool Aquatic Strategy.
*Note that before a final decision is made to close these pools we strongly recommend completing a
geo-demographic analysis around pool locations. This will allow for a more comprehensive look at
issues such as: catchment area characteristics, population growth projections, diversity. This
approach can help in particular to quantify and locate disadvantaged populations at the small area
level.

2. Implementing energy efficiency measures

The cost of heating pools is significant and will continue to increase. We are
recommending a pilot project to install a solar thermal system which heats pool
water. Various options for this efficiency are now available on the market. The solar
thermal system heats the city water prior to entering the pool and therefore there is no
requirement to use gas to heat the water. This will eliminate all of the heating and
electrical costs associating with running the pool. An RFP would be recommended
to seek suppliers of this new technology.

3. Improving the information on costs collected on each pool

The most accurate way to determine the costs of operating pools is to separately
meter the utilities and track the supplies and caretaking time on a pool-by-pool basis.
As a result, the five year capital costs in this report include an amount to meter the
pools and, where practical, to install a separate pool boiler where one does not
currently exist.

Cost savings can also be achieved by installing automated systems for chemical
balancing in all pools (currently found in some pools). There is no need for a
caretaker to test the water levels when the systems are in place.

16 Pools Report, March 2009

4. Reducing labour costs

CUPE 4400 has been involved with concerned community groups in the ongoing campaign
to save the pools threatened with closure. CUPE is interested in assisting the AWG and
TLC in discussions around capital improvements contemplated for the pools which include
automated systems for cleaning and chlorinating. In addition, AWG has identified permit
fees as a significant barrier to the community use of pools. CUPE has agreed to participate
in a
discussion about how to achieve fair and equitable permit fees to maximize community
access.

Increase revenues by:

1. Adjusting permit fees
 The community would play a central role in generating demand for pool use and
expanding aquatic programming opportunities.
 The AWG would work with the user group to set a fair permit fee that is consistent
with other pool providers and ensures maximum utilization. Organizations that have
committed to assist with increasing programming.

Aqua Kids Olympian Swim Club

Canadian Tire Foundation Families Scarborough Swim Club
Lakeshore Swim Club Swim Canada
Mobile Aquatics Swimming Dragons
NYAC Toronto Swim Club
NYMAC YMCA

2. Enhancing the TDSB’s swimming curriculum

This includes extending the reach of programming to students in schools that do not currently
house pools.

3. Working with community partners

Some Toronto neighbourhoods do not have the existing capacity to develop aquatic
programming and some schools do not have functioning school councils. Increasing aquatics
programming will require a collaborative effort on the part of community partners, including
the current aquatic instructors.

The TDSB aquatic staff possesses a wealth of knowledge, experience and skills that, if
accessed, could enable the community to organize and run dynamic, innovative programs.
These aquatic instructors train and certify TDSB students as instructors and lifeguards. These
students could be employed by the community groups to help run their programs. TDSB
aquatic staff could also work independently with community groups to plan their programs.

4. Creating an endowment fund and enabling philanthropic contributions

The Toronto Foundation for Student Success (TFSS) is the arms length charitable foundation
of the Toronto District School Board. It exists to support TDSB students and to enable
programs and supports that enhance student success.

Pools Report, March 2009 17

 The TLC will be exploring the establishment of a segregated endowment fund to be
held within the TFSS to address costs associated with keeping school pools in
operation for its students. The disposition of this fund could be directed by a
Steering Committee consisting of Community Representatives, students, TLC staff,
TFSS and TDSB Trustees. Some ways promote this could include:
 The creation of a web page on the TFSS site to encourage online donations.
 A process for issuing charitable tax receipts for all donations.
 Joint advocacy regarding the importance of physical activity for students.
 Co-hosting special fundraising events.
 Co-ordination of media events to increase awareness of the importance of pools
in local school communities.

5. Exploring sponsorship opportunities

The private sector has approached the Toronto Lands Corporation and the AWG with
an interest in sponsoring pools. These relationships need to be fostered and developed
further.

6. Provincial Programming
Currently the Province funds programs that directly and indirectly support the pools.
These include: Swim to Survive, Focus on Youth Toronto and the Community Use
of Schools. Funding to these programs will continue to offset the operating costs of
the pools and provide for continued program delivery. In addition, community
groups should be encouraged to look to the Communities in Action Fund and the
Obesity Fund, both of which are available to support programs designed to keep
people active.

7. Capital Levy
Implement a capital levy as part of the permit fee to ensure reinvestment in
capital maintenance.

18 Pools Report, March 2009

DECISION-MAKING AND GOVERNANCE RECOMMENDATIONS
1. Ask the TLC to continue to work with the AWG and the TDSB over the next five
years to oversee and implement the recommendations of this report and develop a
long-term governance strategy.

2. The Toronto Lands Corporation (TLC), in conjunction with the AWG, continue to
oversee the pools on behalf of the community and the TDSB.
 Be responsible for management of the capital upgrades outlined in the Altus
Group Cost Consulting report and continued work with the TDSB facility staff to
establish operating cost centers for each pool.
 Be responsible for managing and monitoring a solar thermal pilot project and
report back on the viability of expanding the number of sites in future years.

3. Request TLC and TDSB to collaborate closely in developing strategies to reduce

costs and increase revenues wherever possible.

4. Complete additional analysis on the 33 TDSB pools operated by the city and the
integration of the 30 city pools. Continue delivery of community programming in 33
TDSB pools (agreement in place until 2011).

5. Advocate to ensure that any public plan to build new pools in Toronto first
evaluate the cost-effectiveness of renovating and adequately maintaining existing
pools.

6. Increase the community use of pools by adding capacity to deliver aquatics

programming.

7. Fulfill previous commitment to complete an indoor pool analysis by the City of

Toronto, including consideration of school pools in that analysis, and drawing on the
knowledge/expertise of the AWG to help shape the future of aquatics in Toronto.

Pools Report, March 2009 19