Item - 2022.IE27.6

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.

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.