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The Corporation of the
TOWN OF MILTON
Report to:
Mayor G.A. Krantz & Members of Council
From:
Jennifer Reynolds, Director, Community Services
Date:
August 13, 2012
Report No.
COMS-025-12
Subject:
Indoor Turf Study
RECOMMENDATION:
THAT the Indoor Turf Study (Attached as Schedule A) as
prepared by the JF Group in association with Monteith Brown
Planning Consultants be approved in principle;
AND THAT staff be authorized to commence discussions with
the Halton Catholic District School Board (HCDSB) on a
partnership agreement for a seasonal Indoor Turf Facility at
the Milton Catholic Secondary School located at 1139 Bronte
Street South;
AND THAT field rates for the potential facility should be
developed in accordance with the Town’s user fee model and
policies;
AND THAT staff be directed through the Community Services
Master Plan Update to re-visit the assumptions made for the
previously identified location of the Indoor Turf Facility at the
Derry Green Community Park.
EXECUTIVE SUMMARY
The Indoor Turf Study prepared by the JF Group in association with Monteith Brown
Planning Consultants provides a clear direction to the Town of Milton for the provision of
an indoor turf facility. Demand analysis, capital and operating financial analysis, facility
type analysis and partnership models were studied and recommendations provided.
This report recommends approval of the Indoor Turf Study and the implementation of
next steps. John Frittenburg from the JF Group will be in attendance to make a
presentation to Council.
The Corporation of the
TOWN OF MILTON
Report No.COMS-025-12
Page No. 2
REPORT
Background
The Community Services Master Plan, completed in 2008, stated the Town of Milton
should target the provision of an indoor turf facility between 2011 and 2016. The Master
Plan also concluded that a feasibility study would need to be completed for the facility
whereby options for potential partnerships on both capital and operating models would
be explored. Subsequently, the Milton Sports Centre (MSC) Expansion Study,
completed in 2009, found that sufficient demand for indoor turf was present at that time
in the community and that a feasibility study and business plan should commence. In
response to the recommendation of the MSC Expansion Study, Council approved the
development of an Indoor Turf Study in the 2011 Capital Budget.
The 2010 Development Charges Background Study identified capital expenditures of
$2,447,500 for the construction of a covered artificial turf field. Included in this amount
were funds for a full sized artificial turf field, lights for outdoor use of the field and
infrastructure for the air-supported structure that would cover approximately 1/3 of the
field (grade beam, inflatable fabric cover, mechanical units). An additional $927,200 is
allocated to a support building that would connect to the air-supported structure and
function as dressing rooms and a lobby for the indoor field. The building would also
serve the proposed outdoor park uses that were planned at the same location
(proposed location Derry Green Community Park). The full amounts for the indoor
facility and the support building are included in the 2013 Capital Budget Forecast
approved by Council in December of 2012.
Discussion
Study Composition
The JF Group in association with Monteith Brown Planning Consultants were retained to
complete the Indoor Turf Study. The objective of the study was to investigate and make
recommendations on the following main categories:
• Demand analysis
• Capital and operational financial analysis
• Facility type and design
• Partnership models and opportunities
The Technical Advisory Committee for the project was comprised of the following Town
staff members:
• Jennifer Reynolds, Director, Community Services
The Corporation of the
TOWN OF MILTON
•
•
•
•
•
Report No.COMS-025-12
Page No. 3
Joy Anderson, Senior Manager, Recreation Services
Steve Palmer, Acting Manager, Community Development and Programs
Doug Sampano, Manager, Facility Services – Operations
Robert Humphrey, Economic Development Officer
William Wilson, Investment and Financial Analyst
Numerous consultation opportunities were provided for the study including:
• Prior to the study commencing, an information and feedback session was held in
the spring of 2011with interested stakeholder groups to inform them of the
objectives of the study and allow for feedback in developing the Terms of
Reference. The following groups were in attendance:
o Milton Girls Softball Association
o Milton Minor Baseball Association
o Milton Soccer Academy
o Milton Youth Soccer Club
o Milton Minor Lacrosse Association
o Urban Sports Club
• During the study, interested stakeholder groups were given opportunities to
provide input through a web-based survey, individual interviews and a workshop
held at the MSC. The table on page 12 of the Indoor Turf Study details the
groups who took part in each of the different opportunities.
• A draft report was circulated to the stakeholder groups who had participated in
the study. A summary of comments submitted and the outcome of the remarks
are attached in Schedule B.
Recommended Partnership Model
The Indoor Turf Study completed an analysis of the potential models for delivery of a
facility. The study recommends to proceed with a P2 (Public/Public Partnership) with
the HCDSB and details the rationale for this recommendation within the report. The
concept of a P2 with the HCDSB is also consistent with previous Council direction
related to the staff report on the subject of their Long Term Accommodation Plan.
PD-032-12 previously approved by Council detailed the following direction from the
Ministry of Education:
“One of the goals in the Ministry policy is that with the construction of new
schools, major additions and renovations there is an opportunity for Boards to
leverage other infrastructure investments by co-building with entities that provide
services and programs for children, their families and the broader community.”
The Corporation of the
TOWN OF MILTON
Report No.COMS-025-12
Page No. 4
When Council approved PD-032-12, the report contained a recommendation for Town
staff to review any potential opportunities, relating to the sharing of facilities and or
optimization of the public assets of the HCDSB. The potential partnership on an indoor
turf facility would be a direct example of the Ministry directive and the Council
recommendation. The relationship would benefit the school’s student population along
with the entire Milton community.
Construction on the HCDSB Secondary School located at the corner of Louis St.
Laurent and Bronte Road has already commenced. A portion of the work to enable an
air-supported structure to be incorporated into the initial construction may occur this fall.
In order to ensure this work can proceed and the cost efficiencies realized, staff are
requesting approval to immediately commence discussions with the HCDSB on a
capital and operating partnership agreement. Approval of a mutually agreed upon
partnership agreement would be subject to Council approval. The framework of the
partnership will consider the following as outlined in the Indoor Turf Study:
• design specifications that are agreeable to both partners;
• operating specifications that ensure that each partner’s constituents’ needs are
realized
• a capital cost sharing formula for all aspects of the new facility’s development;
• an agreement on the operating approach that considers differences in users
needs and the operational and scheduling nuances of indoor and outdoor field
environments;
• a facility repair, maintenance, replacement strategy and cost sharing formula;
• an operating cost sharing formula; and
• a monitoring and communications strategy to ensure the relationship meets both
partners’ expectations for the life of the agreement.
Capital Budget Considerations
Staff have endorsed the recommendation in the Indoor Turf Study to proceed with a full
(four) field air-supported structure. The HCDSB intends to have the artificial turf field
ready for the opening of the school in September 2013. HCDSB staff anticipate the
majority of the work on the field to be completed in the spring and summer of 2013.
Base condition work on the field may commence in the fall of 2012 depending on a
number of variables. To capture cost efficiencies, it is important that the air-supported
structure and the required infrastructure be built in unison with the artificial turf field.
Should an agreement be reached with the HCDSB and should construction on the
project begin this fall, Town staff will bring a future report for Council approval
requesting the advancement of a portion of the capital costs into 2012.
The Corporation of the
TOWN OF MILTON
Report No.COMS-025-12
Page No. 5
Operating Budget Considerations
Town staff will prepare the proposed 2013 budget assuming the facility will be a
municipal operated facility. Staff will continue to monitor and evaluate any potential
partnerships for the operating management of the facility.
In order to complete a 5 year financial forecast, the study made assumptions on user
fees for the facility based on market rates and the feedback attained from the potential
user groups. The final field rates for the facility will be subject to the Town’s user fee
model and policies.
Future of the Derry Green Community Park
The Derry Green Community Park is an approximate 20 acre parcel of land to be
conveyed to the Town as part of the Derry Green Business Park Secondary Plan
(pending Regional approval). The park parcel was identified in the 2013 Capital Budget
Forecast as the site for an air-supported indoor facility and support building. The
preliminary plan for the park also includes a number of additional sports fields. Should
the recommendation to partner with the HCDSB to deliver a facility at the Secondary
School location proceed, the need to locate the indoor turf facility at Derry Green
Community Park is eliminated. The Community Services Master Plan update will
commence in the fall of 2012 and as part of the scope, the plan will review the
assumptions for this site and determine the required future impacts on park land needs.
Relationship to the Strategic Plan
Goal: A safe, liveable and healthy community
Direction: To promote and facilitate active and healthy lifestyles and life long learning
• Encourage the exploration of all partnership opportunities in the delivery of
leisure/community/library services.
Goal: Well managed growth, well planned spaces
Direction: Encourage well timed service delivery
• Encourage the development of public facilities in appropriate locations at the right
time to meet the needs of present and future residents.
Financial Impact
The capital cost estimates detailed in the Indoor Turf Study will be utilized to prepare
the 2013 Capital Budget. If Council approves an agreement between the Town and the
HCDSB and work commences on the project in the fall of 2012, advancement of partial
The Corporation of the
TOWN OF MILTON
Report No.COMS-025-12
Page No. 6
funding may be required and subsequently a report will be brought forward for Council
approval. The operating analysis for the facility completed in the study will provide a
basis for preparation of the 2013 Operating Budget. Town staff will further detail and
refine these budgets as part of the 2013 budget process.
Respectfully submitted,
Jennifer Reynolds
Director, Community Services
If you have any questions on the content of this report: Steve Palmer, Acting Manager,
Community Development and Programs 905-878-7252 ext.2581
Attachments:
Schedule A – Indoor Turf Study
Schedule B – Summary of Stakeholder Group Comments
CAO Approval: _________________________
Table of Contents
Introduction .................................................................................................................................................. 1
Purpose of the Study ................................................................................................................................ 1
This Report................................................................................................................................................ 2
Previous Studies ............................................................................................................................................ 3
Demographic and Activity Trends ................................................................................................................. 4
Growth & Demographic Composition ..................................................................................................... 4
Trends ....................................................................................................................................................... 5
Stakeholder Input ....................................................................................................................................... 12
Overview................................................................................................................................................. 12
Summary of Input................................................................................................................................... 12
Demand Analysis ......................................................................................................................................... 16
Introduction ............................................................................................................................................ 16
Current Situation .................................................................................................................................... 16
Demand Analysis Methodology ............................................................................................................. 17
Current Demand ..................................................................................................................................... 17
Future Demand....................................................................................................................................... 21
Field Turf Environment ............................................................................................................................... 22
Development Models ............................................................................................................................. 22
Operating Profiles .................................................................................................................................. 22
Rates and Fees ........................................................................................................................................ 23
Comparable Facility Summary ............................................................................................................... 24
Partnership Assessment.............................................................................................................................. 27
Benefits of Partnerships ......................................................................................................................... 27
A General Evaluation of Apparent Partnership Alternatives................................................................ 28
Potential Proponents ............................................................................................................................. 31
Preferred Development Approach ........................................................................................................ 31
Conclusion .............................................................................................................................................. 32
Capital Cost Implications............................................................................................................................. 33
Preferred Facility Type ........................................................................................................................... 33
Facility Size and Assumptions ................................................................................................................ 34
Capital Cost Estimates ............................................................................................................................ 35
Business Plan............................................................................................................................................... 37
Introduction ............................................................................................................................................ 37
Project Goal and Objectives ................................................................................................................... 37
Operating Profile .................................................................................................................................... 38
Length of Indoor Season and Hours of Operation ................................................................................ 38
Governance and Staffing Plan................................................................................................................ 38
Rates and Fees Strategy ......................................................................................................................... 39
Revenue Assumptions ............................................................................................................................ 39
Cost Assumptions ................................................................................................................................... 41
Financial Projections .............................................................................................................................. 43
Summary of Findings, Conclusions and Recommendations ....................................................................... 46
General Observations............................................................................................................................. 46
Demand for Indoor Turf Fields............................................................................................................... 46
Facility Provision Alternatives ............................................................................................................... 47
Capital Cost Implications........................................................................................................................ 47
Operating Cost Implications................................................................................................................... 48
Conclusions ............................................................................................................................................. 48
Recommendations ................................................................................................................................. 49
Appendix One - Summary of Stake Holder Input
Indoor Turf Study
August 2012
Town of Milton
Final Report
Introduction
The Town of Milton’s Community Services Master Plan (2008) identified that population growth
and shifts in recreation participation patterns would create the need for an indoor turf facility
between 2011 and 2016. The Plan also suggested that prior to making a development decision,
the Town should undertake a feasibility study to confirm the need for the facility as well as
examine potential capital development and operating alternatives. In 2009, the findings of the
Milton Sports Centre Expansion study indicated that sufficient demand for an indoor turf facility
had arisen more quickly than originally anticipated and concluded that a feasibility study and
business plan should be initiated.
Purpose of the Study
This study is to establish a rational approach to meeting demonstrated demand for an indoor
turf facility. The study is also to provide advice regarding the preferred facility development
strategy, operating model and estimated financial performance. To this end, the study’s
objectives are:

to assess the short and long-term demand for indoor turf facilities to accommodate
various community user group requirements and municipal programming needs;

to examine various facility provision and operating scenarios including a detailed
evaluation of the viability of partnership opportunities;

to evaluate and report on the capital and operating cost implications associated with
different facility types, development approaches and component options; and

to provide recommendations regarding future development strategies including a
detailed business plan and partnership analysis for the preferred development
approach.
The consulting team of The JF Group and Monteith Brown Planning Consultants (“the
consultants”) undertook a detailed work plan that focused on the preceding objectives. The
work plan involved a trends analysis, an environmental scan of other relevant facility examples,
stakeholder and user group consultations, the identification of the need for and potential
future uses of a new indoor turf facility, an analysis comparing the capital cost and operational
implications of a preferred facility option, a partnership viability analysis and the development
of a business plan including operating revenue and cost projections.
The JF Group in Association with:
Monteith Brown Planning Consultants
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Indoor Turf Study
August 2012
Town of Milton
Final Report
This Report
This report presents the results of the study which include:

an overview of the population, demographics and community profile implications
germane to the viability of the proposed facility;

relevant sport and recreation participation trends as well as changes in consumer
preferences that could affect operating and facility scheduling decisions;

a discussion of the turf field environment and related factors that will influence the
facility’s operations,

an analysis of current and future demand as well as projected growth forecasts;

an analysis of various facility delivery alternatives including an evaluation of partnership
possibilities that arose during the course of the study process;

capital cost estimates for the preferred facility type and development approach; and

the business plan including the projected operating revenues and expenses for the
facility’s first five years of operation.
The JF Group in Association with:
Monteith Brown Planning Consultants
~2~
Indoor Turf Study
August 2012
Town of Milton
Final Report
Previous Studies
The Town of Milton’s 2004 Parks and Facilities Update for the Sherwood Survey Secondary Plan
recommended that the Town clarify its willingness to participate in the development of an
indoor soccer facility. This Study indicated that there was a high level of confidence that an
indoor soccer facility in Milton would be well used, however, there were questions about
appropriate service levels and the potential to negotiate an acceptable financing and operating
partnership. Subsequently, the Town studied the possibility of converting the John Tonelli
Sports Centre into an indoor turf facility. However, the facility’s design and Town-wide need for
indoor ice were factors that negated Tonelli as a viable indoor turf alternative.
As mentioned in the previous section, the Town’s 2008 Community Services Master Plan
examined parks and recreation facility needs and recommended that the Town undertake a
feasibility study for an indoor turf facility (between 2011 and 2016) to determine the associated
costs and operating structure. At the time, it was projected that Milton could sustain one
indoor turf field (approximately 200 by 100 feet), growing to three indoor turf fields by 2016.
In 2009, the Town completed a Concept Design & Business Plan for the Milton Sports Centre
Expansion. As part of the preliminary analysis, an indoor turf venue was studied along with
several other recreation facility components. Although the study determined that there was
demand for an indoor turf facility, site constraints led to a decision that an indoor turf venue
would not be recommended as part of the Milton Sports Centre expansion. However, the study
suggested that the Town should immediately begin the process of developing a strategy to
meet the indoor turf field needs of the community.
In 2010, the Town completed its Analysis of Parkland & Recreational Facility Needs Within the
Boyne Survey Secondary Plan. This study examined the parkland and recreation facility needs
created by the new residential development area, as well as other outstanding Town-wide
recreational facility requirements. Based on the findings of previous studies, this analysis
reiterated the need for an indoor turf facility (one to two fields with partnership potential) and
raised the possibility of locating a new turf venue at Derry Green Community Park.
In the fall of 2011, the Milton Soccer Centre was opened on Main Street East in Milton. This
facility, which is the lone indoor turf facility in Milton, consists of a 130 x 80 foot indoor field
that accommodates the needs of the Milton Soccer Academy and other soccer rentals and
programs as well as individual and group rentals for rugby, lacrosse, field hockey, football,
Ultimate Frisbee, bocce, lawn bowling, golf, fitness, etc.
The JF Group in Association with:
Monteith Brown Planning Consultants
~3~
Indoor Turf Study
August 2012
Town of Milton
Final Report
Demographic and Activity Trends
The Town’s demographic make-up and sport participation profile are important influences that
must be considered in determining the current and future needs for an indoor turf facility.
Growth & Demographic Composition
Milton has been the fastest growing community in Canada for the last ten years – the Town
grew by 71% between 2001 and 2006 and by 57% between 2006 and 2011. This rate of growth
is expected to continue as the Town expands into new developments and as population
intensifies within urban areas.
The Town’s population - 84,362 as per the 2011 census - is projected to nearly double within
the next ten years, growing to 161,750 in 20211. This forecast fits within the population goal of
the Province’s Growth Plan for the Greater Golden Horseshoe that established a targeted Town
population of between 147,000 and 180,000 by 2021. Continued growth is anticipated to the
extent that by 2031 Milton will be home to 228,084 citizens. As has been the case over the past
decade, population growth will intensify demands for new and expanded recreation services
and infrastructure to meet the needs of a larger and more diverse citizenry.
Town of Milton Historic and Forecasted Population Growth (1981-2031)
Source: Statistics Canada, 1981, 1986, 1991, 1996, 2001, 2006, 2011; Regional Municipality of Halton Best Planning
Estimates, 2011.
Contrary to the general aging of Ontario’s population, Milton is expected to remain a relatively
young community. The Town’s residential and community development will continue to attract
1
Regional Municipality of Halton. Best Planning Estimates. 2011.
The JF Group in Association with:
Monteith Brown Planning Consultants
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Indoor Turf Study
August 2012
Town of Milton
Final Report
a younger adult cohort, many of which will be in prime child-bearing years. Over the next ten
years, this will result in a significant increase in the Town’s child and youth population. As a
large number of young families move into Milton, the Town will need to keep pace with rising
demands for new and expanded recreational services that cater to residents of all ages.
The ethnic composition of the GTA is becoming increasingly diverse because the region offers
economic and social supports that are attractive to immigrants. In 2006, 24% of Milton’s
population was made up of immigrants – just below the provincial average of 28%2. And, as the
Town becomes increasingly ethnic diverse, there are greater demands for activities that appeal
to multiple cultures including soccer and cricket, which are internationally popular.
Milton’s 2005 median household income ($86,604) was well above the provincial average
($60,455)3, which is likely attributable to the Town’s location within the GTA where housing
costs are higher, which generally correlates with higher wages. It is noteworthy however, that
affordability will continue to be an important issue for a certain segment of Milton’s
population. This can be achieved by continuing to offer some form of financial assistance for
access to municipal programs and services either through preferential pricing (such as the
Town’s current practice of providing a youth fee subsidy) or through assistance programs (i.e.
Jump Start).
The 2006 Census data reveals that Town residents are generally well educated – 57% of citizens
over 15 years of age have a college or technical school education (6% better than the provincial
average) and 23% have earned a university diploma or degree compared to the provincial
average of 20.5%4. It is likely that university education levels within the community will
continue to rise, particularly if the Town becomes home to a post secondary institution. This is
germane to this study because well educated, high income earners are most likely to engage in
elevated levels of participation in sport and recreation activities.
Trends
The following is a summary of sport trends that may influence the demand for indoor turf
facilities in Milton.
Physical Activity Levels
In 2011, 52% of residents within the Halton Region were moderately active or active during
leisure-time. While this is slightly higher than the provincial average (50.5%), it means that
about half of Halton residents are insufficiently active to achieve optimal health benefits. A
correspondingly high number of Halton Region’s residents (49%) are overweight or obese.
2
Statistics Canada. (2006). Community Profile.
Ibid
4
Ibid
3
The JF Group in Association with:
Monteith Brown Planning Consultants
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Indoor Turf Study
August 2012
Town of Milton
Final Report
By their nature, recreation activities promote healthy lifestyles. An indoor turf facility is one of
several facilities that could help to promote heightened levels of physical activity that can
contribute to better health and wellbeing of the Town’s residents.
Organized & Unorganized Activity Trends
Over the past decade, participation in organized sports has declined throughout Canada.
Conversely, self-scheduled, unstructured activities are on the rise and are becoming more
popular than traditional forms of sport involvement. The following are some key findings from
studies conducted by the Canadian Fitness and Lifestyle Research Institute and Statistics
Canada:

Male sport participation continues to eclipse levels of female involvement. However in
some sports, participation by women and girls is on the rise and is helping to offset
declines in certain male-dominated sports (hockey). Soccer is enjoyed by both males
and females.

Beginning at the age of 12, rates of sport participation begin to decline and drop off
considerably after 20 years of age. Participation in physical activity of all types
decreases in the teenage years and not surprisingly there is a corresponding reduction
in the fitness levels of teenagers.
Consumer preferences and the public’s expectations regarding recreation facilities and services
are changing over time and it is expected that:

people will be increasingly attracted to less physically rigorous activities and will also be
drawn to endeavours that offer personal skill development (this trend is already evident
in many communities across Ontario);

there will be a shift away from participation in certain structured sport and recreation
activities towards activities that are more informal, casual and self-scheduled;

females will expect a broader spectrum of recreation and sport activities that respond
to their particular needs and interests; and

older adults will be at the forefront of consumers expecting a higher quality standard for
community services and facilities.
Soccer Participation
Although turf field facilities typically accommodate a variety of sports, soccer is normally the
most dominant use. And, while this study focuses on indoor turf facilities, it is appropriate to
examine influences of both the outdoor and indoor soccer markets to help better understand
the general condition of the sport. Additionally, it is generally accepted that there is a direct
correlation between the number of outdoor soccer players in a jurisdiction and the propensity
of indoor play.
The JF Group in Association with:
Monteith Brown Planning Consultants
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Indoor Turf Study
August 2012
Town of Milton
Final Report
Soccer underwent enormous growth in the ‘90s when it replaced baseball and hockey as the
most popular team sports among Canada’s youth. Although participation growth rates have
been more modest over the past decade, registrations have remained at impressive levels.
Ontario Soccer Association – Total Registration (Indoor and Outdoor)
Source: Ontario Soccer Association (OSA); Statistics Canada 1996, 2001, 2006, 2011
According to the Ontario Soccer Association (OSA), enrolment in outdoor soccer activities
peaked in 2007 and has slightly declined in each year since. While the sport remains popular,
participation reductions are most apparent in younger age cohorts.
In the past ten years, registrations in the Peel Halton Soccer Association have risen by 6,326
players, representing a 12% increase in the number of outdoor players. Although this rise in
registrants is 30% better than the 9% growth in provincial registrations, it falls well short of the
27% increase in Peel Halton’s population over the same time period. Therefore, the regional
youth outdoor soccer capture rate – registrations as a percentage of the population - has
actually declined, with the most significant reduction occurring over the last five years (20062011). This would suggest that interest in outdoor soccer in Peel Halton may be leveling off
among existing residents. However, in high growth communities like Milton that are attracting
new residents of all ages, it is likely that the actual number of registrations will continue to
increase as populations climb.
The JF Group in Association with:
Monteith Brown Planning Consultants
~7~
Indoor Turf Study
August 2012
Town of Milton
Final Report
The Peel Halton Soccer Association (PHSA) reports that in 2011 over 3,000 youth were
registered in organized outdoor soccer programs in Milton. However, survey data provided by
the Milton Youth Soccer Club and the Milton Soccer Academy indicates that collectively about
4,000 players participated in their 2011 programs - the majority of participants being youth.
The difference between the registration numbers of the PHSA and the local organizations may
be caused by: competitive players sometimes play in more than one league; youth players may
be registered in a league as well as a development program; systemic issues with the on-line
registration process; and in certain cases the definition of club age categories do not align with
the Association’s age groupings.
Note: The following data includes organizations affiliated with the Ontario Soccer Association,
including Milton Youth Soccer Club, Milton Soccer Academy, Milton Soccer League, Milton
Soccer Club, Milton Gunners, and AC Milton. Excluded are school teams, private sports clubs
(e.g. Urban Sports Club, and casual play).
Registration in Peel Halton Outdoor Soccer
Year
2002
2003
2004
2005
2006
2007
2008
2009
2010
2011
Mini/
Youth
n/a
n/a
n/a
n/a
49,863
51,848
53,331
50,039
47,293
47,072
Senior
n/a
n/a
n/a
n/a
9,292
10,214
11,889
12,502
12,991
13,644
Total
54,390
56,165
55,961
56,591
59,155
62,062
63,220
62,541
60,284
60,716
Change
6.8%
3.3%
-0.4%
1.1%
4.5%
4.9%
1.9%
-1.1%
-3.6%
0.7%
Source: Ontario Soccer Association (OSA)
While overall soccer registrations in Ontario may have begun to level off, registrations in adult
soccer leagues have increased 62% in the past ten years (2002-2011). Likewise, in the past six
years (since 2006) Peel Halton Soccer Association experienced a 47% rise in adult/senior
outdoor soccer registrations.
The JF Group in Association with:
Monteith Brown Planning Consultants
~8~
Indoor Turf Study
August 2012
Town of Milton
Final Report
Source: Ontario Soccer Association (OSA)
In 2011, the province-wide ratio of youth to adult outdoor soccer players is approximately four
to one. This ratio is mirrored in Peel Halton and Milton and represents a proportionate rise in
adult players of 5% since 2006. The popularity of adult soccer is on the rise as more active
adults take up the sport and as the most active adults continue to play soccer to an older age.
The demand for indoor facilities has been driven by soccer’s continued appeal plus an increased
emphasis on year-round training and competition. While only a segment of the overall soccer
market play indoors, more players are looking for year round soccer opportunities – a trend
that is elevating registrations in indoor
programs. As of 2011, the ratio of outdoor
to indoor soccer players was 4 to 1 in
Ontario, with a much higher proportion of
indoor play in Peel Halton (2.5 to 1). The
proportionate number of indoor players is
different than was the case ten years ago
when the outdoor to indoor ratio was 6.25
to 1 across Ontario. The number of
registered indoor players has continued to
rise even as year over year registrations in
outdoor soccer have leveled off or declined.
Provincially, the number of indoor soccer
players registered by the OSA has increased
by 68% between 2002 and 2011, a more
The JF Group in Association with:
Monteith Brown Planning Consultants
~9~
Indoor Turf Study
August 2012
significant rise than the 9% growth seen in outdoor
soccer. The Peel Halton Soccer Association has
experienced a 38% increase in registered indoor
players over the past six years.
Town of Milton
Final Report
Many new indoor turf facilities
have been built in the GTA in the
past five years - including several in
the Peel Halton region.
The disparity between the growth rates of indoor and
outdoor soccer is very likely caused by the many
recently developed indoor turf facilities throughout the
province. These new venues have improved the
availability of sport-specific facilities that are preferred by both youth and adults who are
interested in playing indoors. Also, many of the facilities offer a wide variety of program
alternatives that appeal to a number of different interests – i.e. organized leagues, drop-in play,
team rentals, etc.
While indoor soccer is gaining
increased
traction
with
youth
participants, its popularity is rising
even faster among adult registrants. In
the past ten years (2002-2011) indoor
soccer registration across Ontario has
risen 49% in the mini/youth age
category and 100% in the senior
category. In 2011, the number of
senior indoor registrants in Peel Halton
soccer
programs
(11,820)
was
marginally below the number of
mini/youth registrants in outdoor
soccer leagues and program (13,644).
According to the stakeholder survey,
Milton based soccer organizations reported that for the 2011/12 indoor season there were
1,491 players in organized indoor soccer programs. Both the Milton Youth Soccer Club (MTSC)
and The Milton Soccer Academy (MSA) report that the primary age range for participants in
indoor programs is youth between 4 and 18 years of age. The MSA also organizes programs
that target adults – male and female adult leagues and skill development programs – and the
Milton Soccer Centre accommodates adult team rentals over and above the Academy’s
programming initiatives.
Trends in Other Field Sports
Most indoor turf facilities are built to accommodate a variety of different sports and activities.
Therefore trends relating to other field-based sports are important considerations in
determining the overall need for a new field turf venue.
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August 2012
Town of Milton
Final Report

Tackle Football is a sport with cyclical popularity. There are recent indications that the
sport may be again gaining popularity in Ontario, particularly for players in the 7 to 19
age group. The Ontario Tackle Football Association reports that the sport’s largest
challenge is the supply of lit fields, as football is an autumn sport when darkness occurs
earlier in the afternoon/evening. In that indoor turf facilities offer playing surfaces that
are smaller than regulation fields, most football clubs normally use turf facilities for
indoor training purposes. However, flag football is often played in indoor turf facilities
in jurisdictions where organizations offer this type of sport programming.

Field Lacrosse is played by approximately 10% of Canada’s registered lacrosse players
with the majority of players preferring box lacrosse – which is largely played in indoor
arenas or boarded turf facilities. Field lacrosse is generally played during the spring on
football or soccer fields.

Ultimate Frisbee is an emerging field sport with excellent growth potential and appeals
to both men and women in the 20-39 age brackets, which is a growing segment of
Milton’s population. The sport offers excellent “fitness value” and carries a very low
entry level cost (limited specialized equipment is required) making it quite appealing to
a growing number of enthusiasts. Ultimate Frisbee is a popular sport in Milton as a
number of private sports clubs organize leagues at various skill levels.

Cricket is a growth-sport in many municipalities in the province that are home to large
ethnic populations. People from England, South Asia, and West India, who have grown
up in cultures where cricket is popular – even revered – are continuously pursuing
opportunities for new or improved cricket facilities. Toronto and other GTA jurisdictions
are experiencing increasing demand for competitive cricket venues and practice
facilities. Milton has plans to develop its first official outdoor cricket facility and it is
reasonable to believe that demand will continue to increase as the Town grows and
becomes more ethnically diverse. Similar to football, cricket players prefer a larger field
but clubs would likely use an indoor turf facility for training and modified games.

Rugby is not seen as a growth-sport in most parts of the province, but remains stable in
communities that are home to strong clubs that organize appealing programs. The
rugby season typically begins in May and continues through the summer. Rugby leagues
in the region may use an indoor turf facility in Milton for off-season training.

Field Hockey is a growing sport. While the sport is most often delivered through school
athletic programs, it is offered privately in Milton. Field hockey is one of the few field
sports where the majority of players are women (about a 3:1 ratio). The sport is
becoming a year-round activity and the indoor version has been gaining popularity.
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Indoor Turf Study
August 2012
Town of Milton
Final Report
Stakeholder Input
Overview
In April and May 2012, several organizations were contacted to complete an online survey.
Primary stakeholders were also selected to participate in interviews from which the consulting
team hoped to gain an understanding of their organization’s needs and expectations for an
indoor turf facility. Both the survey and interviews were constructed to learn more about the
activities and programs of each organization, as well as collect input about the facility’s design,
users’ preferences for facility management and operations, partnership potential, anticipated
amount of field use, programming expectations, etc. Rounding out the consultation activities, a
workshop was held on May 2, 2012 to allow stakeholders to collectively discuss matters of
demand, design, etc.
The following table identifies the organizations that provided input. A number of other
organizations declined the Town’s invitation to participate in this study.
Listing of Organizations
Organizations
Milton Youth Soccer Club
Milton Soccer Academy
Milton Soccer League
Urban Sports Club
Milton Sports Club
Milltown FC
Milton Lacrosse Association
Milton Girls Softball Association
Milton Cricket Ground
Halton Minor Football
Interviewed


Completed
Survey





Attended
Workshop



Y



Y
Summary of Input
Informants shared many of the same opinions about the need for an indoor turf facility and
have similar thoughts about the type of amenities that should be contemplated for the new
facility. The general feeling was that there is significant need for a municipal multi-use indoor
turf facility, primarily to serve the local youth soccer market. A summary of the input provided
by the various groups and organizations is contained in Appendix A.
It is noteworthy that the consultation activities occurred at an early stage in the study process
and groups were asked to identify their interest and anticipated use of the indoor turf facility
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August 2012
Town of Milton
Final Report
before parameters of the facility’s design, rental rates or management approach had been
determined. From experience, we know that rental cost and the ability of the facility to
adequately accommodate certain uses will strongly dictate the degree of utilization. Therefore,
as part of the business planning activities, groups’ requests will be interpreted through a lens
that takes into account these important use factors.
Indoor Field Demand – Soccer

The largest user of a municipal indoor turf facility is likely to be the Milton Youth Soccer
Club (MYSC). The Club indicated that it could likely use as many as 2 indoor fields during
prime time/peak-season exclusively for its programs, which includes both competitive
and recreational leagues. A new indoor turf facility would allow the Club to move its
existing programs away from school gymnasia which would free up gym time for other
community activities. The Club would also expand its programs in order to offer new
training and developmental opportunities. According to the Club’s survey response,
MYSC experienced 3% - 5% growth in player registrations over the past 2 seasons and in
the 2011/12 season had 500 competitive and 450 recreational/house league players
involved in indoor soccer programs. At present, the Club uses gymnasia in Milton and
indoor turf facilities in nearby communities.

According to the study survey, the Milton Soccer Academy had approximately 470
indoor players in 2011/12. The organization’s needs have been (and will continue to be)
served by the Milton Soccer Centre – the Academy is the primary tenant of the Centre
that is operated by a company affiliated with the Academy. The MSA representative
reports that there is capacity at the Milton Soccer Centre to accommodate the
organization’s future growth. However, if another Milton based indoor turf facility was
developed, the Academy might use as many as 4 hours per week in peak season.

Other potential soccer users include the Milton Soccer League (20 hours per week in
peak season) and Urban Sports Club (approximately 4 hours per week). Milltown FC
may also be interested in using field time but according to the Club representative, the
rental price will be an important determinant in the number of hours that it could
practically utilize.

Many local teams currently play in the Hershey Centre soccer league (in Mississauga)
and groups acknowledged that it will be difficult to entice these teams to relocate to
Milton because the Hershey league offers a highly established level of competition.
Therefore, it is expected that some local Milton players will continue to participate
outside of the community, even if the Town builds its own indoor turf facility.

Prime time hours (generally 5pm to 11pm on weekdays and 7am to 11pm on weekends)
during peak season are in high demand. Utilization in the off-peak months (generally
May to September) and during the daytime (year-round) will be limited.

Soccer informants believe that the growing number of locally available outdoor artificial
turf fields will not negatively affect demand for an indoor turf facility. This opinion is
rooted in the fact that field rental rates are comparable and weather is unpredictable
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August 2012
Town of Milton
Final Report
during the shoulder seasons when overlapping use would most likely occur. There is
one existing field at Bishop Reding Secondary School with another field anticipated for
the Fall of 2012 at the new Craig Kielburger Secondary School. There is the potential of
a third new artificial field (2013) at a new catholic secondary school development. The
groups indicated that at present, the existing field at Bishop Reding is not well utilized
by the community in large part due to the prevailing rates structure.

In recent years, the Town’s soccer organizations have experienced growth in their
indoor and outdoor programs. The clubs believe that this growth will continue and
therefore suggest that the Town should plan for both current and future requirements.
Indoor Field Demand – Other Sports
While indoor soccer is expected to be the dominant use for the proposed facility, other sports
and users expressed interest as potential facility patrons. This includes (but may not be limited
to) Ultimate Frisbee, cricket, flag football, lacrosse, baseball training, etc.

The Urban Sports Club expressed interest in using an indoor turf facility for Ultimate
Frisbee (approximately 6 to 8 hours per week). The Club currently has about 50 to 60
players and offers its programs at indoor facilities in Brampton and Burlington. The Club
representative also indicated that an indoor turf facility may allow them to expand
existing programming to include new options such as flag football.

The Milton Cricket Ground is interested in an indoor turf facility for practice (would
need netting and hard surface for batting practice) and modified games. The group
suggested it could use up to 25 hours per week during peak season, although the
willingness to pay market rental rates is uncertain. The demand for indoor cricket may
become more apparent as this group becomes more established (it began its first
outdoor season in 2012).

The Milton Lacrosse Association runs a successful box lacrosse program as well as a
smaller field lacrosse program. Lacrosse representatives identified demand for 6 to 9
hours per week of prime time usage at an indoor turf facility.

One organization from Milton’s baseball community responded to the survey and
workshop – Milton Girls Softball Association. Most ball groups use local gymnasiums in
the late winter and spring for indoor training purposes. The Girls Softball Association
indicated an interest in using an indoor turf facility, possibly for 2 to 10 hours per week
during the latter half of the indoor peak season.

Halton Minor Football is in immediate need of 6 hours of field time per week during
peak season. The representative indicated that the Association is very anxious to access
indoor turf field time and as such will be exploring various alternatives including the
possibility of developing its own facility if a municipal turf venue was not available for
the winter of 2013. Despite this qualification, the Association’s needs have been
included in the demand calculation.
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Indoor Turf Study
August 2012

Town of Milton
Final Report
While Milton Minor Baseball Association (MMBA) did not respond to the survey, in the
past representatives from the organization have discussed with staff the group’s
interest in using an indoor turf facility. Currently MMBA utilizes school gymnasia for its
indoor programs.
Facility Design, Management and Location
Survey respondents and workshop participants also provided input about design considerations
as well as opinions about management and operating approaches for the indoor turf facility.

A municipally operated facility is generally the preferred option because groups believe
that this would provide greater certainty in terms of field allocation and operational
accountability. However, the Milton Youth Soccer Club also indicated an interest in
being an active participant in the facility’s operation. Some organizations suggested
that demand in the summer could be minimal and that the Town would need to be
creative in encouraging off peak season usage.

Groups expressed a slight preference for a permanent building rather than an air
supported structure based largely on a perception of greater comfort. However, it is
very evident that the type of facility and its design is less important to users than are
rental costs, availability of prime time hours and quality of the turf.

Most organizations expect to run programs that can be accommodated on smaller field
templates (e.g. 180 x 100 feet). However, some groups would use a larger 360’ x 200’
field if it were available - i.e. adult soccer groups may prefer the occasional full field
game. Additionally, Ultimate Frisbee requires a full size field to accommodate two
games simultaneously. Groups generally suggest that “form should follow function” and
therefore that the design should be dictated by the outcome of the need and demand
analysis.

Soccer clubs recognize that the facility would likely charge market rates for rental of the
indoor fields - a fact that framed their expectations for potential pricing. Youth soccer
groups would most frequently use a 100’ x 180’ field and anticipate paying between
$100 and $149 per prime time hour during peak season. The adult group felt that $150
to $199 per hour would be reasonable.

Lacrosse, baseball, cricket, and – to a lesser extent – adult sports clubs, appear to be less
willing to pay market rates for rentals, with most suggesting that an hourly rate of less
than $100 per hour would be reasonable for peak season prime time.
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Indoor Turf Study
August 2012
Town of Milton
Final Report
Demand Analysis
Introduction
One of the key deliverables of this study is an examination of the need and demand for a new
multi-use indoor turf facility in Milton. Furthermore, the demand analysis must consider how
and by whom the facility will be used in both the short and long-term in order to accurately
forecast the sustainability of utilization.
Our review and analysis is based on a number of inputs including: background documents, the
community’s demographic profile and recreation trends data; community user groups’
potential utilization; and feedback from local stakeholders.
Current Situation
The growth in the popularity of soccer has cultivated increased demands for sport field facilities
- additional outdoor fields as well as year-round indoor facilities. Furthermore, user groups
expect top quality fields that are accessible at times convenient for their constituents and at
rental rates deemed affordable.
There are several indoor turf venues within the Town’s general vicinity, including the privately
operated Milton Soccer Centre located within Milton. According to information received
through the stakeholder survey, the Milton Youth Soccer Club, Milton Soccer Academy, and
Urban Sports Club collectively use approximately 235 hours of indoor field time per week
during peak season at various facilities. The majority of this time (200 hours) relates to MYSC
turf facility rental at venues located in Acton, Burlington, Oakville, Hamilton, and Mississauga.
It is likely that some of this field use is shared with teams from other communities suggesting
that the demand being generated from Milton players is somewhat less than the total weekly
rented hours. There is also a core group of Ultimate Frisbee players that use out-of-town
facilities.
In addition, the Milton Youth Soccer Club and the Urban Sports Club presently utilize
approximately 80 hours per week of gymnasium time for their indoor soccer programs during
the winter. These groups have indicated that – due to design, size and availability issues –
gymnasiums are inadequate for indoor soccer programming. The groups also suggested that
they cannot grow their programs further due to facility limitations. Furthermore, input from
stakeholders suggests that a properly built local indoor turf facility has the potential to attract
new users as well as encourage groups to relocate their activities from gyms thereby freeing up
gymnasium time for other community activities.
The future outlook for indoor field sports indicates that indoor soccer will become increasingly
popular as more youth and adults take up the game and/or participate in additional off-season
training. Consistent with the findings of the Town’s Concept Design & Business Plan for the
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August 2012
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Final Report
Milton Sports Centre Expansion (2009), some Milton based organizations believe that significant
latent demand exists for indoor turf sports and suggest that indoor leagues would be feasible if
an indoor turf facility was available. The Milton Sports Centre study suggested that in particular
the adult market represents a significant amount of demand for an indoor facility.
Interest in other sports such as Ultimate Frisbee, lacrosse and football is also increasing –
although participation in these sports is expected to remain modest relative to soccer.
In combination therefore, these factors suggest that current needs will grow and that there will
be even greater demand for indoor turf venues over time.
Demand Analysis Methodology
Our research indicates that nearly every urban community in Central and Southwestern Ontario
with a population over 100,000 has at least one indoor turf facility and some communities less
than half this size are beginning to provide or consider such facilities. Several new facilities
have opened in the Greater Toronto Area within the last five years, dramatically improving the
supply.
Decisions to provide indoor turf facilities are driven by a variety of factors that are often unique
to each community. Factors such as strength of local sport organizations, activity interests,
socio-demographic profiles, willingness to travel, regional supplies, construction and operating
cost, etc. are normally considered in advance of a project moving forward. Therefore, it is not
advisable to base development decisions on a per capita provision targets, given that each
community’s characteristics may be different. Rather, it is more appropriate to assess current
demand by examining the potential usage of the facility by local sports organizations and to
project future needs by determining how the groups’ use requirements will change over time.
Current Demand
The following tables illustrate the requests received from local sports organizations for use of a
new indoor turf facility on a weekly basis in both the peak and non-peak seasons. Most of the
groups’ requests assume that usage would occur on a typical indoor field template
(approximately 100 x 180 feet). Accordingly, our demand analysis assumes that an hour of field
time relates to a field template that is ¼ of a full size soccer field.
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August 2012
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Final Report
Number of hours requested through Surveys & Interviews – Peak season (October to April)
Prime Time Hours
per week
Non-Prime Time
Hours per week
Months
100
5 to 7
Oct - Apr
Milton Soccer Academy
4
0
Nov, Jan, Feb, Mar
Milton Soccer League
20
0
Oct - Apr
Urban Sports Club (Soccer)
4
0
Oct - Apr
128
5 to 7
6 to 8
0
Oct, Nov, Dec, Feb,
Mar, Apr
Unsure
0
n/a
Milton Lacrosse Association
6 to 9
0
Nov, Dec, Feb, Mar,
Apr
Milton Girls Softball Association
2 to 10
0
Jan, Feb, Mar, Apr
Milton Cricket Ground
20
5
Nov - Apr
Halton Minor Football
6
0
Nov. - April
Subtotal – Other Sports
40 to 53
5
168 to 181
10 to 12
Organization
Milton Youth Soccer Club
Subtotal – Soccer
Urban Sports Club (Ultimate Frisbee)
Milton Sports Club
Total Weekly Hours - October to April
For the purposes of this exercise, prime time was defined as 5pm to 11pm Monday to Friday and 7am to 11pm Saturday and
Sunday; non-prime hours were defined as prior to 5pm Monday to Friday.
Number of hours requested through Surveys & Interviews – Off-peak season (May to September)
Prime Time Hours
per week
Non-Prime Time
Hours per week
Months
5 to 20
5 to 20
May, Sept
Milton Soccer Academy
0
0
n/a
Milton Soccer League
0
0
Sept
Urban Sports Club (Soccer)
4
0
May, Sept
Subtotal – Soccer
9 to 24
5 to 20
Urban Sports Club (Ultimate Frisbee)
6 to 8
0
May, Sept
Unsure
0
n/a
n/a
0
n/a
0
0
n/a
Milton Cricket Ground
2 to 5
2 to 5
n/a
Subtotal – Other Sports
8 to 13
2 to 5
Weekly Hours May to September
17 to 37
7 to 25
Organization
Milton Youth Soccer Club
Milton Sports Club
Milton Lacrosse Association
Milton Girls Softball Association
For the purposes of this exercise, prime time was defined as 5pm to 11pm Monday to Friday and 7am to 11pm Saturday and
Sunday; non-prime hours were defined as prior to 5pm Monday to Friday.
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Indoor Turf Study
August 2012
Town of Milton
Final Report
Peak season requests total 168 to 181 prime time hours per week, with 128 hours requested by
soccer organizations. It is noteworthy and germane to the business plan that soccer groups
indicated a willingness to pay market field rental rates. Cricket, Ultimate Frisbee, lacrosse,
football and baseball training have requested 40 to 53 prime time hours per week in the peak
season although some of these activities may have a more limited season and groups may be
less willing to pay market rental rates. Potential off-peak season usage is considerably lower
and less predictable as most sports and associated activities shift to outdoor facilities.
We have assumed that there would be approximately 65 prime time hours per week (Monday
to Friday from 4:00 p.m. to 11:00 p.m. and Saturday to Sunday from 7:00 a.m. to 11 p.m.). In
certain communities the 4:00 p.m. time slot is considered a shoulder period because groups
may have difficulty utilizing the field due to players’ and coaches’ conflicts with school and work
commitments. However, for the purposes of this analysis we have included the 4:00 slot in the
prime time calculation but have adjusted the field utilization projections to a lower level. Based
on the use profile of other indoor turf facilities, we anticipate non-prime time (daytime) usage
to be sporadic and limited.
Local indoor soccer groups expressed a need for about 128 prime time hours per week, which
at face value would suggest that current demand is equivalent to 1.97 indoor turf fields
exclusively for soccer activities in the peak season (128 divided by 65). Requests from other
sports (Ultimate Frisbee, cricket, lacrosse, football and baseball) amount to an additional 40 to
53 prime time hours which increases the current demand calculation to 2.6 to 2.8 indoor turf
fields in the peak season (168 to 181 divided by 65).
The preceding calculations assume that all of the soccer and sport groups’ current utilization
would be repatriated to Milton should a new indoor turf facility be developed in the Town.
However, stakeholder input indicates that this assumption is too aggressive. For example,
certain soccer players that have become accustomed to the playing conditions and the level of
competition at facilities in neighboring municipalities (Mississauga and Oakville) would likely
remain within their existing teams or programs. Also, groups that have limited financial
capacity may be unwilling to move some or all of their programs to the new and more costly
turf facility even though the environment and amenity levels would be far superior to the
relatively lower cost school gymnasia alternative that currently accommodates their programs.
Furthermore, the availability of the most convenient and desirable prime time hours (6:00 p.m.
to 9:00 p.m. weekdays and 8:00 a.m. to 5:00 p.m. weekends) will influence groups’ relocation
decisions. Finally, Halton Minor Football may elect to develop its own turf facility.
For the purposes of illustration, if 25% of the soccer and sports groups’ current reported
utilization remained at their existing venues, the total current need calculation would decline to
between 1.9 and 2.1 indoor turf fields in peak season.
It is noteworthy that there may be field demand from other organizations that did not
participate in the study. Usage could also come from outside municipal boundaries; however
The JF Group in Association with:
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Indoor Turf Study
August 2012
Town of Milton
Final Report
the number of additional non-resident hours could be small given the growing number of
indoor turf facilities in surrounding communities.
We applied a second, participant-based analytical technique to test the demand calculations
that result from user group requests. Based on our experience, on average, an indoor soccer
program requires 1 hour per week of field time for each 10 to 12 program participants. This
participant per field hour metric takes into account a number of factors including teams that
play and practise numerous times per week, games that last more than an hour, ½ field use by
younger participants, etc. While some of these influences would suggest that the metric
reflects a higher number of participants per hour (like two teams of recreational players that
play one game per week with no practises), a similar number of factors drive the ratio lower
(i.e. rep teams that play twice and practise once per week). On previous occasions this 10 to 12
participant metric has been compared to other measures and has proven to be an accurate test
of demand.
Applying the metric to the Milton Youth Soccer Club’s 950 indoor soccer players, the demand
for indoor soccer field time from this group would be between 79 and 95 hours per week
(generally between October and April), which is somewhat less than the 100 hours the group
requested. This figure, does not account for adult usage, latent demand or growth that may
occur as a result of an increase in available peak season facility time. It is noteworthy that the
Milton Soccer Academy has not been included in the analysis of soccer demand because it is
assumed that Academy registrants will, by in large continue to use the Milton Soccer Centre for
their program needs.
To identify pent-up (or un-met) demand, it is helpful to consider the number of outdoor players
in Milton. Presently, the percentage of Milton Youth Soccer Club participants that play both
indoor and outdoor soccer is approximately 30%. This is within the 25% to 40% range that we
typically see in other communities with developed soccer programs. As a result, it is likely that
the amount of pent-up demand for youth indoor soccer in Milton is low (perhaps 10%). If this
percentage was applied to current requirements, it would result in the need for about an
additional 8 to 10 hours per week to serve current youth demands.
Stakeholder input and the usage profiles of facilities in other jurisdictions would suggest that
the greatest amount of pent-up demand in Milton could be related to the adult market. The
Milton Soccer Centre offers leagues and skill development programs that target adults and
several adult teams rent field time in the facility. However, many other adult participants play
on teams or are registered in programs at facilities outside of the Town. There is no accurate
data or records that indicate the number of adult indoor players from Milton because most
Town based adults play on non-local teams.
Based on Ontario Soccer Association data, it can be assumed that approximately 50% of adult
outdoor players will also play indoor soccer. For 2011, the OSA reported 464 senior players
within the Milton SL Club League and AC Milton team. Applying the 50% ratio translates into
The JF Group in Association with:
Monteith Brown Planning Consultants
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Indoor Turf Study
August 2012
Town of Milton
Final Report
232 adult indoor players. Employing the 10 to 12 participant per field hour metric produces a
need for about 19 to 23 hours per week within an indoor facility.
Using the participant-based approach, soccer activities represent a total demand for 99 to 118
hours per week in peak season. Based on an availability of 65 prime time hours per week, this
current demand is equivalent to 1.5 to 1.8 indoor turf fields – which is between 8% and 23%
less field demand that was calculated utilizing the user group request methodology. It is also
noteworthy that the participant-based approach includes adult soccer needs whereas the user
group requests were exclusively from youth soccer organizations.
Given the results of these two calculations, and in view of our suspicion that not all existing
utilization would be transferred to the new facility, we suggest that there is current demand for
1.7 indoor turf fields to accommodate soccer needs arising from within the Town of Milton.
As evidenced by the utilization profiles of other indoor turf venues, soccer will be the most
significant use in a new turf facility in Milton. Our consultations confirmed that Milton’s other
sport groups would use from 40 to 53 prime time hours per week for cricket, lacrosse, football
and baseball training – which is equivalent to between 30% and 40% of the requests from the
soccer community. Given that many of these activities have a limited season and groups may
be unwilling to pay market rates, our experience suggests that this number of required prime
time hours may be aggressive. Therefore, unless a non-soccer group is willing to financially
commit to a significant amount of field time, the proportion of non-soccer usage is likely to be
closer to 15% or 20%.
Taking into account all of these factors, we calculate that 2 additional fields are currently
required to accommodate all of the existing indoor community demand for indoor turf facilities
in Milton.
Future Demand
Given the Town’s rapid population growth, future demand for recreation facilities of all types
will continue to intensify – the number of Milton residents is projected to nearly double by
2021. If sport participation rates remain constant and assuming that the Town’s demographic
composition remains relatively consistent with current profiles, it is reasonable to suggest that
the demand for indoor turf facilities will be between 3.5 to 4.5 indoor fields by 2021.
Considerable population growth is also forecasted to 2031 which will contribute to further
demands for all types of recreation facilities including indoor turf facilities.
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Final Report
Field Turf Environment
Over the past decade, a significant number of indoor turf facilities have been developed in
Southern Ontario. Most of these facilities are primarily used for soccer games, practices and
training. However the versatility of these venues allows them to be used for a wide variety of
purposes.
In most cases, indoor turf fields are either located in permanent built structures or under airsupported domes. There are no standard criteria that dictates which of these options is most
applicable to a particular situation. However, it seems that potential developers consider
location, the size of the local market, availability of capital funding and the financial viability of
the business model in making their building system selections.
Development Models
There are several general development and operational models that have been applied to
indoor turf facilities.
Municipal model – some municipalities have elected to deliver these facilities utilizing a
traditional municipal development model – e.g. Mississauga and Brampton. Under this model,
the municipality is fully responsible for the facility’s design, development, capital funding and
operations.
Private model – certain indoor turf facilities have been developed by private enterprise –e.g. AC
Milan Centre (Vaughan), Milton Soccer Centre. The private entity develops and operates the
facility on a commercial basis.
Not-For-Profit partnership model – in some jurisdictions, municipalities have assisted not-forprofit organizations in developing a turf facility to meet local needs – e.g. Oakville, Burlington,
Guelph. In several cases the facilities are almost entirely focused on meeting the organization’s
needs although some municipalities prescribe that a certain amount of time is reserved for
general community use. The application of this model has the municipality funding the capital
cost of the facility (that is normally located on public land) and the not-for-profit organization is
responsible for operations. Generally, the groups repay the municipality the principle
(sometimes plus interest) over the course of a predetermined term.
Operating Profiles
Operators of indoor turf facilities generally conform to one of two operating profiles.
Program delivery profile – the facility operator organizes leagues, camps, instructional programs
and other activities that are accessed by individuals or groups on a registration basis. Generally
the fields are occupied by participants engaging in programming organized by the facility with
The JF Group in Association with:
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Town of Milton
Final Report
very few hours rented to outside groups. This profile is popular at facilities operated by notfor-profit groups (normally soccer clubs) that run leagues and camps largely to meet the needs
of their members. There are financial benefits associated with this operating approach because
programming creates opportunities to boost net income by incrementally increasing hourly
revenue production. For this reason most commercial operators and some municipalities have
adopted this entrepreneurial operating approach with a view to maximizing the “net financial
yield” from the facility.
Facility rental profile – the facility operator allocates and rents time to user groups on a
seasonal basis. This approach mirrors the most common municipal facility operating model
through which user groups are assigned blocks of time that are used for their own purposes.
The amount of time allotted to each group is determined utilizing some form of allocation
system that usually includes a historical tracking of use. This approach leaves all programming
responsibilities to the user groups. It is noteworthy that groups frequently rely on the net
revenue generated by programming to support other aspects of the organization’s activities.
Therefore groups are sometimes hesitant to use or become involved in joint-ventured facilities
when the programming responsibilities (and related revenue potential) rests with the facility
operator.
Rates and Fees
Our environmental scan examined the rates and fees charged by 15 indoor turf facilities. The
sample included 10 permanent facilities and five bubbled venues. Interestingly, the average
rental rates charged to youth groups for an hour of field time (100’ X 180’ field) is virtually the
same for either type of facility – averaging $182.50 per hour in the permanent facilities and
$189 per hour under domes. We also examined the median price – which is the price in the
middle of the range of prices with ½ the prices above and ½ prices below – because the median
is less likely to be affected by a small number of unusually low or high values that may skew the
average. In this case the median price of an hour of youth prime time in our sample of
permanent structures is $175 per hour whereas the median price at domed structures is $200
per hour.
Facilities that have adopted the program profile charge varying registration fees for entry into
leagues and other programs. Again, prices are very similar regardless of the type of facility
within which the program occurs. For example, teams registering in adult soccer leagues can
expect registration fees between $125 and $150 per game – leagues generally include 12 to 15
games per session. Facilities that register youth teams charge between $100 and $125 per
team per game with most leagues spanning 15 to 20 games – playing one game per week. A
sub-set of facilities register children/youth on an individual basis and then assign child or youth
to a team and league of his or her corresponding age and skill level. In these cases players are
charged between $150 and $175 for between 15 and 20 league games.
The JF Group in Association with:
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Town of Milton
Final Report
Comparable Facility Summary
The following table presents a brief description of the 15 facilities included in our
environmental scan including their operating model and rate structure. This information was
received directly from each of the facilities either through personal interviews or data collected
from their websites. For clarity, the field descriptions are either expressed with the specific
dimensions or referred to as a full field (approximately 360’ X 220’), half field (approximately
200’ X 180’) or a quarter field (100’ X 180’).
Results of Environmental Scan of Comparable Facilities
Name
Facility Description
Operating Model
Milton Soccer
Located in an industrial Privately owned
Centre
building
facility that offers
Milton
80’ X 130’ artificial turf
leagues,
field
instructional
Dressing rooms
programs, group
Meeting room
rentals, corporate
meetings & birthday
parties
Hershey Sports
Complex Indoor
Turf Field
Mississauga
Full artificial turf field
Dressing rooms
Fitness Centre
Concession
Hershey Turf
Bubble
Mississauga
Pine Glen
Oakville
Full artificial turf field
under new dome
(bubble)
External small dressing
rooms
Full artificial turf field
Dressing rooms
Burloak Sports
Centre
Burlington
2 - 150’ X 60’ feet
artificial turf fields
Change rooms
The JF Group in Association with:
Monteith Brown Planning Consultants
Rates
$165 – 230 per hour
Operated by the
City. The indoor
facility is almost
entirely utilized for
leagues – very few
rentals
Operated by the
City offering a mix
of leagues and
rentals
Adult Leagues $2,030 / team
Youth Leagues - $450
- $3,800 / team
Operated by the
Oakville Soccer Club
- largely
independent from
the municipality
Youth leagues - $150
- $170 per player
Adult leagues $2,300 / team for 15
weeks
Rent for ¼ field $210
- $225 / h r
Privately owned and
operated
Leagues and team
rentals, parties
Youth and Leagues $1,825/12 week
$160/hr per field
$130 - $190 per hour
Comments
The Milton Soccer
Centre is owned
and operated by a
private company.
The Academy is
the anchor tenant.
Other individuals
and groups rent
blocks of time.
Youth leagues play
on ¼, ½ and full
fields which
influences the
price
Rates are lower
than indoor facility
so groups can
afford to buy
practice time
Largely serves the
Soccer Club needs
–about 5% outside
rentals
Net $ to service
the municipal
debenture
th
Going into 5
Season
3 years old
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Town of Milton
Final Report
Name
Sherwood Park
Bubble
Burlington
Facility Description
Two 100’ x 200’
artificial turf fields
under bubbles
The two facilities were
developed on a phased
basis.
Operating Model
City debentured the
bubble and Soccer
Club is operating
the facility – paying
the debenture cost
over 10 years
Rates
Club rental - $180$190
General rental - $200
Comments
85% of time is
used by Burlington
SC
2 bubbles now and
one new one in
future
Brampton Soccer
Centre
Brampton
4 – 200’ X 85’ artificial
turf fields
Change rooms, meeting
rooms, concession
Municipally
operated
4 Brampton Soccer
Clubs are main
renters
Prime Club - $150
Prime Affil. - $177
Other - $221
Non-City - $277
Private parties
Use on field for
courts sports – B
Ball, V Ball, floor
hockey etc. in
summer months
Dufferin Rural
Heritage
Community
Centre
Halton Hills
Agricultural building
161’ x 101’ artificial turf
field
$170 per hour
BMO Centre
London
Full artificial turf field
(390 x 195 feet)
Dressing rooms
Concession
Meeting / Banquet
rooms
400m suspended
exercise track
1/3 of full artificial turf
field under bubble
Dressing rooms
Adult, coed, men,
ladies youth
Run by Georgetown
SC
Owned and
operated by the
Acton Agricultural
Society
Long term operating
agreement with the
Town of Halton Hills
Owned and
operated by the
London Optimists.
No leagues, just
rentals.
Concession
contracted out
Guelph Indoor
Soccer Facility
Ontario Soccer
Centre
Vaughan
Full artificial turf field in
mixed use building –
130,000 sq. ft.
Dressing rooms
Concession
1/3 artificial turf field
under a bubble in
winter
The JF Group in Association with:
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City debentured the
bubble and Soccer
Club is operating
the facility – paying
the debenture cost
over 10 years
Operated by the
Ontario Soccer
Association
Partnership with
City of Vaughan
$150 per hour for ¼
field ($75 per hour
during non-prime
hours)
Opened in 2011
Indoor PT Full Field $570 per hr - $190/ ¼
field
Bubble - $190 / hr
NPT at half price
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Name
Hanger at
Downsview
Toronto
Facility Description
4 – 105’ X 165’ artificial
turf fields
New bubble covering
on outdoor field during
winter months
Dressing rooms
Concession
Operating Model
Crown company –
profits are returned
to Fed. Govt.
Soccer, football,
Ultimate Frisbee,
leagues, 2,000
registered players
Durham Soccer
Centre
Oshawa
Full indoor and full
outdoor artificial turf
fields, change rooms,
concession, room
rentals
200’ X 360’ artificial
turf field dividable into
4 - 90 X 200 ft fields–
52 ft. ceiling
Synthetic turf, change
rooms, showers, juice
bar
210’ X 120’ artificial
turf field dividable into
2 fields (but do not
offer ½ field rentals)
210m 4-lane IAAF
certified polyurethane
track
Dressing rooms
Meeting and multipurpose room
Canlan owns and
operates the facility
Players Paradise
Indoor Facility
Stoney Creek
Royal Distributing
Athletic
Performance
Centre
Guelph/Eramosa
(Marden)
The JF Group in Association with:
Monteith Brown Planning Consultants
Rates
Bubble – 1/3 field
$200/hr
Full field - $555/hr
Same rates for indoor
facility
Youth league $2,250/team (20
games)
Adult league $1,500/team (12
games)
Indoor
Peak rental - $225/hr
Off peak - $160/hr
Daytime - $130/hr
Privately owned and
operated
Soccer, Ultimate
Frisbee, golf,
leagues, rentals
$195 / hr ¼ field
Operated by
Township. Mostly
rentals, but some
daytime
programming
Headquarters of the
Ontario Football
Alliance
Prime time Full Field
$180.00/hr;
Non-Prime time full
field $110.00/hr;
May/September
$110.00/hr;
June -August
$80.00/hr
Comments
Beach volley ball
and National
Squash Academy
on the same site
Opened in 2010
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Final Report
Partnership Assessment
One of this study’s objectives is to undertake an analysis of various facility provision approaches
with a view to determining if a partnership or joint venture model would be a viable alternative
for the development of an indoor turf facility in Milton. This is an important decision as the
Town establishes plans for its long term capital investments in sport, recreation and cultural
facilities. As in most communities across Canada, the Town will be challenged to meet the
funding requirements of developing new facilities while maintaining its existing stock in good
repair. In certain cases in other jurisdictions, the application of an alternative facility provision
strategy has assisted in easing some of these funding pressures.
Most municipalities view relationships with external groups as one of several development
methods for capital projects. And, as the number of partnership examples grows, it is
becoming increasingly clear that partnerships involve nuances not normally found in traditional
facility provision models. Consequently, many municipalities ensure that ALL potential
partnerships undergo rigorous scrutiny through the application of a screening mechanism
before the project proceeds. Municipalities that have adopted an evaluation framework to
assess and secure suitable partners have found that the process: (1) informs municipal officials
of the merits and drawbacks of each partnership candidate and project; and (2) clarifies the
expectations and obligations of organizations looking to partner with the municipality.
Benefits of Partnerships
Several common elements are inherent with successful municipal partnerships.






The venture will be mutually beneficial to each partner.
There are clearly defined roles and responsibilities.
There is a performance evaluation methodology.
There is a shared commitment to serve the needs of those affected by the venture.
There is a commitment to improve.
There is fair and honest recognition of each partner's contribution.
Any future relationships with outside groups are only practical if reasonable benefits accrue to
Milton and that the relationship supports municipal priorities. To this end, it is the Town’s
responsibility to thoroughly analyze each potential relationship on its own merits. Generally,
this analysis would involve an assessment of the relationship’s ability to provide one or more of
the following beneficial outcomes.





provide access to new sources of capital;
create public infrastructure at less capital cost than a municipal delivery model;
create public buy-in to the project by engaging the community;
gain access to systems and techniques that are beyond municipal capabilities;
gain access to experience or expertise that is outside the normal municipal approach;
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Town of Milton
Final Report
achieve improved operating/financial performance beyond municipal capabilities; and
transfer certain operational risks or financial liabilities.
It would be important that the Town develop a relationship with a compatible and willing
partner that shares the municipality’s long-term vision for the project. Not only should the
partner bring the necessary skills and resources to fulfill its project obligations, but also
demonstrate a public service attitude. Recognizing that all partnerships should be developed in
response to specific circumstances of a particular project, potential partners should understand
the Town’s intent to develop an open and honest relationship where each partner’s
contribution is important to the success of the project. Furthermore, the partner must be
dedicated to the pursuit of the mutually accepted objectives and endorse a philosophy of
constant improvement. Finally, there must be shared commitment to provide a quality sport
environment that is consistent with the expectations of Milton residents.
A General Evaluation of Apparent Partnership Alternatives
Throughout the course of this study, three types of relationships have emerged as potential
facility delivery and operating alternatives. These include:

A Private Partnership (P3) – a relationship between the Town and a private partner;

A Public/Public Partnership (P2) – a relationship between the Town and public sector
agency, in this case a school board;

A N-F-P Partnership – the relationship between the Town and a not-for-profit
organization, in this case a local soccer club.
Normally, municipalities solicit proposals from potential partner candidates and evaluate the
relative merits and drawbacks of each proposition against each other as well as how the
alternative models compare to a traditional municipal delivery approach. Through the course
of this study, we have engaged in general discussions with individuals and organizations that
may be interested in partnering on the Town’s field turf project. It should be understood
however that we have not solicited or received the level of detail that would normally be the
basis of a thorough comparative analysis. Therefore, the following information is presented as
a general evaluation of the pros and cons of the above partnership alternatives based on our
preliminary discussions and our experience in other communities.
The following table presents a discussion of each alternative’s likely capabilities of delivering on
the potential benefits which effectively act as basic evaluation criterion. An arrow pointing
upward indicates a positive benefit, a sideways arrow indicates a neutral contribution and
arrow pointing downward indicates distinct drawbacks related to the criterion.
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General Partnership Assessment
Benefit
Sources of
new capital
Project is less
costly
More public
and user
group buy-in
P3 Partnership
Depending on the nature of the
project, private partners may be
interested in investing capital.
However, private enterprise expects
returns on investment that normally
exceed the cost of funds available to
the finance municipal projects
(debentures). Therefore, private
capital contributions often increase
financing cost to the project.
There is no evidence that this type of
relationship would result in a project
that was less costly than if the
municipality was to develop the
facility on its own.
There is hesitation among user groups
to participate in a project involving
private enterprise. Groups believe
that a private operator would have
diminished accountability compared
to a traditional municipal operation
and that the operator’s profit motive
would result in to higher rental rates.
Furthermore, a private operator
would almost certainly organize
leagues that would conflict with the
programming practices of the Milton
soccer clubs.
P2 Partnership
N-F-P Partnership
If the facility became a joint venture
with a school board on a site that was
planned to receive a new school
facility and associated amenities, the
project would benefit from capital the
school board had already earmarked
for the development.
There are recent examples where notfor-profit partners have contributed
capital to municipal projects (e.g. Pine
Glen, Oakville). However, the Milton
soccer organizations indicated that
they do not have significant funding
reserves that could be applied to the
project. They may however be willing
to participate in fund raising activities.
Board representative indicated that
the planned new school development
includes the installation of an artificial
turf field which would represent a cost
avoidance to the project in the order
of $1.5M. The project would also
benefit from project amenities
planned for the new development (i.e.
parking and a potential field house).
It is likely that residents would
welcome a relationship that
maximizes the community benefits
arising from the expenditure of public
funds.
There is no evidence that this type of
relationship would result in a project
that was less costly than if the
municipality was to develop the
facility on its own.
This type of relationship is generally
well received in communities where
municipalities have partnered with
not-for-profit groups. However, it
would be important that Milton not
inadvertently establish a precedent
that causes other local groups to
inappropriately expect a similar
relationship with the Town.
Benefit
New systems
and
techniques
Access to new
expertise
Improved
operating and
financial
performance
Potential risk
transfer
P3 Partnership
P2 Partnership
N-F-P Partnership
Experienced private operators may
have access to booking and
reservation systems or other
technological supports that are
currently not within the municipality’s
inventory of supports.
Experienced private sector operators
will have developed transferrable
expertise in other locations that could
be beneficial to the project.
This relationship would likely result in
the municipality operating the facility
and consequently there would be
neutral benefits associated with this
criterion.
The local soccer groups do not have
experience in operating a facility of
this sort. Therefore, there would be
neutral benefits.
This relationship would likely result in
the municipality operating the facility
and consequently there would be
neutral benefits associated with this
criterion.
It is impossible to predict the financial
performance of the privately operated
facility without thoroughly examining
the operator’s proposed business
plan. However, in other examples,
private operators have produced
financial gains (tested against
municipal comparators) due to their
ability to generate revenues rather
than successes in cost containment.
This could suggest groups would pay
more in rental fees or lose out on
programming net revenues.
Risk sharing and risk abatement is
always a major theme in negotiations
between public and private sector
partners. Risk sharing is possible
however, at some cost to the project
(i.e. loss of rates and fee control).
Assuming that an amicable joint
venture agreement could be
negotiated with the school board, it is
reasonable to expect that an
operating cost sharing formula is
achievable. This would reduce the
Town’s cost exposure. It is unclear at
this point in the process as to whether
the school would be willing to pay rent
for its daytime facility use.
The local soccer groups do not have
experience in operating indoor turf
facilities. There would be a certain
degree of risk in assigning operating
responsibilities to an inexperience
partner.
It is unlikely that an inexperienced
partner would be capable of
producing financial results that would
exceed the performance of a
municipally operated facility. In fact,
it is quite likely that the reverse would
be the case until the operator
developed an understanding for the
field turf business.
The terms and conditions of the joint
venture agreement would include risk
sharing provisions.
It is very unlikely that the club - made
up of volunteers - would agree to be
exposed to operating or financial risks.
And, even if it were to do so, the risk
consequences would be absorbed by
the municipality if the club was unable
to handle its obligations.
Indoor Turf Study
August 2012
Town of Milton
Final Report
Potential Proponents
A number of potential partnership options arose throughout the course of the study’s research
phase. We engaged in preliminary exploratory discussions with each proponent to assess their
suitability for the project, compatibility with municipal philosophies and capacity to deliver on
project responsibilities. Our research involved interviews with a representative of Milton Youth
Soccer Club, Milton Soccer Academy, Milltown FC, Halton Minor Football, three private sector
candidates and the Halton Catholic District School Board (HCDSB). The information provided by
each proponent was incorporated in the general evaluation in the preceding table that
illustrates the relative pros and cons of each partnership option for this project, at this time.
Preferred Development Approach
To be clear, our general analysis cannot be characterized as an exhaustive or detailed
examination of all potential partnership opportunities nor can it be suggested that the results
would be the same if a similar examination was performed for another project or facility type or
at a different point in time. However, given local circumstances, the demand profile for a
Milton based indoor turf facility as well as the characteristics and opinions of potential facility
users, we believe that there is reasonable rationale for the Town to explore a facility
development agreement with the Halton Catholic District School Board.
The Board’s new school project at Louis St. Laurent and Bronte Road currently includes plans
for an all-weather turf surface (outdoor) football/soccer field which would be suitable for
indoor use if it were covered by an air supported dome structure. A potential field house may
also be included in the development depending on the availability of the necessary capital
funds.
Applying a P2 approach to develop a joint ventured indoor turf facility would result in several
operating advantages and financial benefits for the project.

the project would realize capital cost savings by taking advantage of the all-weather turf
field that may already be included in the school’s development budget;

the municipality and the HCDSB could jointly achieve capital savings by sharing the costs
of elements that would be used by each partners’ constituents – i.e. the potential field
house;

the turf facility could take advantage of site works and amenities that would be
undertaken as part of the school project - such as parking, services to the field, etc;

the proximity of the school and the indoor turf facility could result in daytime use of the
bubbled fields that may not otherwise occur;
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Town of Milton
Final Report

the municipality and the HDCSB could agree on a mutually satisfactory cost recovery
formula for possible school use of the bubbled facility (subject to further discussion and
agreement between the Board and the Town); and

the municipality and the HCDSB could share in the capital repair and replacement costs
of certain facility elements (subject to further discussion and agreement between the
Board and the Town).
Board representatives indicated a willingness to assist the Town in achieving its goal of
providing an indoor turf facility to meet local community group requirements. If a P2
development approach were pursued, the Board and the Town would engage in more detailed
discussion about acceptable operating arrangements for the indoor facility. While it is assumed
that the Town would be responsible for the indoor operations, municipal officials and the Board
would entertain and evaluate alternative operating models, should they arise.
For the
purposes of estimating the operating revenue and cost implications of the new facility, the
business plan has been based on the assumption that the municipality would manage and
operate the indoor facility.
Conclusion
It is recommended that the Town of Milton pursue a relationship with the Halton Catholic
District School Board for the development of a new indoor turf facility at the Board’s new
school development. In doing so, it is suggested that the Town and the Board continue
discussions with a view to reaching a mutually agreeable relationship that considers:

design specifications that are agreeable to both partners;

operating specifications that ensure that each partner’s constituents’ needs are met;

a capital cost sharing formula for aspects of the new facility’s development;

an agreement on the operating approach that considers differences in users’ needs and
the operational and scheduling nuances of indoor and outdoor field environments;

a facility repair, maintenance, replacement strategy and cost sharing formula;

an agreeable recovery formula that considers the costs and revenue implications of the
addition of the indoor seasonal facility to the school development ; and

a monitoring and communications strategy to ensure the relationship meets both
partners’ expectations for the life of the agreement.
The JF Group in Association with:
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Town of Milton
Final Report
Capital Cost Implications
Preferred Facility Type
As demonstrated by the results of the environmental scan, municipalities generally choose
from one of two facility options for the provision of indoor turf facilities; (1) permanent
structures; or (2) air supported domes (or bubbles) over artificial football or soccer fields. The
two alternative facility types offer different playing environments and customer experiences
because of the facility features and elements that are inherent in each building system.
Normally, municipal officials consider the operating and financial nuances of each option while
determining the most appropriate facility type to suit the needs and characteristics of a
particular project.
Type of Facility Considerations
Consideration
Permanent Structure
Capital Cost
Operating Cost
Seasonal
Implications
Life Cycle
A permanent building is the more
expensive option to construct with
capital costs dependent on facility size,
design specifications and construction
quality
Staff and utility costs represent the most
significant operating expenses over a
permanent building’s 12 month
operating season
Popular winter venues although difficult
to program and challenging to rent time
in the summer months
Similar to other types of community
recreation buildings, the life of an indoor
turf facility would likely by 25 to 35 years
Consumer
Opinions
Patrons generally enjoy the environment
and the program flexibility of permanent
turf buildings
Operating
Considerations
Requires aggressive programming to
keep occupied during the non peak
summer season
Air Supported Dome
A bubble is the least expensive
alternative with capital costs dependent
on facility size, single or dual liner, type
of lighting and equipment selection
Utility costs are relatively more
expensive per hour of facility use
however, facility operating costs apply
to a shorter indoor season – 5-7 months
Offers flexibility as the turf field can be
covered in the winter and be converted
to an outdoor venue in the summer
The bubble fabric has a life expectancy
of 15 to 20 years – depending on UV
protection and the operator’s inflation
and take down procedures
Consumers like the ability to play
outdoors in the summertime
Some suggest that the air quality and
temperature in the bubble is superior to
a traditional indoor environment
Cannot be used as a “general gathering
place” due to exiting and other code
issues thereby limiting certain program
alternatives
Project circumstances such as the amount of unmet program and service demand, urgency of
need, timing of development, availability of funding and presence of a viable partner generally
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Town of Milton
Final Report
influence a municipality’s decision of facility type and method of project delivery. These factors
were important considerations in our recommendation that the Town work towards a P2
approach with the HCDSB for the development of the indoor turf facility.
The school requires an open air, outdoor field to accommodate academic, intramural and intercollegiate programs from approximately April to October each year. Therefore, the
involvement of the school in the project will predicate that the facility be a seasonal, air
supported structure.
In accordance with the recommended development approach, the capital cost and business
plan presented in the following sections are based on an air supported indoor turf facility over
an all-weather turf surfaced soccer/football field.
Facility Size and Assumptions
Our demand analysis calculates that there is current need for about two indoor 100’ X 180’ turf
fields to meet the needs of soccer and other sport groups within Milton. The calculation also
projects that population growth will increase indoor turf needs to a total of between 3.5 and
4.5 fields by 2021. To facilitate prudent decision making, we have assembled the capital cost
implications for both a two-field and a four field bubble. The assumptions that underpin the
capital cost estimates are presented below.
Two-field bubble assumptions – the footprint of the two field bubble has been set at 225 feet
by 210 feet with a ceiling height of 62 feet. This size was selected so that the grade beam (that
attaches the bubble to the ground) would be as unobtrusive as possible when field is used in its
summer (outdoor) configuration. The grade beam would be located at the centre field line as
well as the back line of the end zone and outside to each sideline. A two-field bubble would
cover 50% of the school’s soccer/football field. It is assumed that during the construction
phase, a second grade beam would be installed around the other half of the field to facilitate
the installation of a second bubble when demand arises in sufficient quantity to support two
additional fields. The bubble will be a dual membrane structure which will not only help to
contain utility costs but also allow for the downsizing of the furnace, inflation/heating system
and standby unit – which will reduce the facility’s capital cost.
Four-field bubble assumptions – the footprint of the four field bubble has been established at
364 feet by 238 feet with a ceiling height of 74 feet. This size bubble enables the entire grade
beam to be located outside of the football/soccer playing surface and therefore would have no
negative impact on outdoor use. The larger bubble would also be a dual membrane structure
for the reasons outlined above.
Field house assumptions – a potential field house that may be located outside the track and
adjacent to the soccer/football field would provide support services for the benefit of facility
patrons and staff. HCDSB’s initial design for the field house is for a two story, 3,756 sq. ft.
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Town of Milton
Final Report
structure that includes two change rooms with washrooms, two officials’ rooms with
washrooms, mechanical, maintenance and janitorial rooms, storage area and a second floor
announcer’s booth. With the introduction of the winter operation, the field house would be
used as the control/entry point to the indoor turf facility when the dome structure is covering
the field. Additionally, the field house would be the primary amenity to serve community user
groups and other turf field users during winter months. Therefore, it may be necessary to
adjust the field house design to augment the operational versatility and performance of the
facility. For example, the addition of a reception area for control purposes may be appropriate.
Additionally, the change rooms could be expanded to provide more floor area to accommodate
the space requirements of a higher volume of facility users (both youth and adult participants)
than was contemplated in the Board’s initial design. The change rooms may also benefit from
the addition of small shower areas to improve the amenity package available to field users.
Finally, given that facility patrons will be required to walk between the field house and the
dome structure (over the track) it would be advisable to provide a portable and temporary
covered link that would offer weather protection.
Other assumptions – the following assumptions have been established for the purposes of
estimating the Town’s capital costs associated with the project. Some of these items will be a
matter of negotiations between Milton and the HCDSB and will therefore only be fully
understood after the facility development agreement has been finalized.

the Town will be responsible for the cost of bubble and associated site works related to
the dome structure including the installation of the grade beam(s);

HCDSB will be responsible for the cost of bringing services to the indoor turf facility, the
cost of installing the football/soccer field including the playing surface as well as all site
works including parking;

HCDSB will be responsible for the cost of the field house that was contemplated in the
original design concept; and

the Town will be responsible for incremental increases in the cost of the field house that
will result from the addition of the bubble and the winter operation of the facility.
Capital Cost Estimates
To prepare the capital cost estimates for the two bubble options, we solicited input from a
reputable, Ontario based supplier of air support structures. With over 30 years of experience in
manufacturing and installing air support structures for clients in a worldwide market, we are
confident that our source has provided capital cost projections that are realistic and reliable.
The capital cost estimates are based on:
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Indoor Turf Study
August 2012
Town of Milton
Final Report

The manufacturer’s quoted cost of a dual membrane bubble including high textile
strength polyester fabric with acrylic top coat finish, thermal acoustical liner membrane,
furnace/inflation system including a built in standby unit, remote control station, a
revolving door, emergency doors, lighting systems and pools, anchoring channel, seams
and sections. Programming and maintenance equipment – such as soccer goals, field
divider nets, an artificial turf dresser, etc. are not included in the capital cost estimate,
however would represent a relatively minor expense within the overall project budget.

Grade beam installation estimated at $400 per lineal foot.

Physical upgrades may be required to the field house to increase its footprint and/or to
augment the amenities and quality of finish within the building. An amount of $250,000
has been allocated to the capital budget to fund these improvements. Based on the
early cost estimates for the initial field house, the allocated amount would be sufficient
to expand the footprint by about 20% (750 sq. ft.) leaving adequate funds to upgrade
the interior amenity and finish package of the public spaces to the equivalent of $60/sq.
ft. It is noteworthy however, that these estimates are very tentative and intended for
illustration purposes only. The final budget would be determined through a detailed
design and costing study that will be required as part of the development negotiations
and agreement between the Town and the HCDSB.

A project contingency of 20% of estimated capital costs.
The following table presents the estimated capital costs that would be borne by the Town for
the two-field and four-field air support structures.
Indoor Turf Facility Capital Cost Estimates
Item
Two-field Option
Bubble Foot Print in Sq. Ft.
Grade Beam in Lineal Ft.
Grade Beam Installation
Bubble & Equipment Cost
Town's Portion of Field House
Sub-total
Contingency
Total
$
$
$
$
$
$
47,250
1,740*
696,000
669,108
250,000
1,615,108
323,022
1,938,130
Four-field Option
$
$
$
$
$
$
86,632
1,204
481,600
1,128,005
250,000
1,859,605
371,921
2,231,526
*Note – includes capital cost to install a grade bean to accept a future second bubble.
The dome manufacturer was also supplied costing information for a variety of optional features
that may be advisable additions to either of the bubble options. Should the project proceed,
the Town could decide to include certain options that would assist in operations or extend the
life of the bubble. However, we have not included these features in the capital estimates in
order to provide an “apples to apples” comparison of the cost implications of each alternative.
The JF Group in Association with:
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Indoor Turf Study
August 2012
Town of Milton
Final Report
Business Plan
Introduction
This section presents the indoor turf facility’s business plan. The plan’s financial projections
have been established in accordance with the proposed project goal and objectives, staffing
approach, pricing strategy and utilization pattern that are described in the following sections.
While Milton could accept and evaluate alternative operating proposals, we have created the
business plan based on a municipal management model. Should the Town decide to explore
other operating alternatives, the information contained herein could act as a “municipal
comparator” against which private or not-for-profile proponents’ proposals could be evaluated.
The business plan assumes that the Town will manage and operate the bubble during the
winter season and be responsible for all revenue and costs associated with the indoor
operation. When the facility reverts to its summer configuration, the normal scheduling and
maintenance procedures that apply to other HCDSB owned outdoor fields will govern the
operating relationship between the Town and the Board.
Project Goal and Objectives
The Town’s goal for the project is to develop and operate an attractive and cost efficient indoor
turf facility that serves the needs and interests of a wide variety of Milton’s sport and
recreation users. The business plan for the facility has been developed in accordance with the
following project objectives.

To provide a facility that is developed and operated in a fashion consistent with the
Town of Milton’s mission, vision and mandate.

To provide the Town’s user groups and residents general access to sufficient indoor turf
time to meet both current and future needs.

To enhance the recreation and leisure opportunities available to Town residents.

To ensure affordable access to the facility, consistent with Milton’s public service
philosophy and cost recovery principles and policies.

To minimize the capital cost of the facility without jeopardizing the scope or quality of
the facility.

To maximize the facility’s economic benefits to the municipality.
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Monteith Brown Planning Consultants
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Indoor Turf Study
August 2012
Town of Milton
Final Report
Operating Profile
The Town will operate the bubble utilizing the facility rental profile described on page 23 of this
report. The Department will allocate and rent blocks of time to each user group. It is assumed
that the allocation process will be undertaken by existing Town staff and conform to
procedures applied to other types of municipal facilities – arenas, fields, diamonds, etc. Groups
will be free to organize their own leagues and deliver programs targeting the needs of their
constituents. Net revenue generated by these activities will be retained by the groups.
Length of Indoor Season and Hours of Operation
The soccer/football field will be utilized for school activities including inter-collegiate league
play with playoff games schedule up to the end of October each season. Generally speaking,
outdoor programs and leagues start around the middle of April each year. Therefore, we have
assumed that the indoor season will be 24 weeks in length - November 1 to April 15.
The facility will be available for rental between 7:00 am and 11:00 pm Monday through Sunday.
The prime and non-prime time definitions that were described in the demand calculations will
influence the rental profile as well as the staffing plan and pricing strategy. These definitions
are:



Weekday Prime Time Hours - 4:00 pm to 11:00 pm
Weekday Non-prime time Hours - 7:00 am to 4:00 pm
Weekend Prime Time Hours - 7:00 am to 11:00 pm
Governance and Staffing Plan
Based on the assumption that the Town will operate the indoor facility during the winter
months and that the customary summer field scheduling and maintenance practices will be
applied to outdoor operations, there is no need to establish a new layer of governance for the
indoor turf facility. Existing Community Services Department personnel will assume the roles
and responsibilities necessary to allocate and schedule time to each group or individual user
and the normal facility rental procedures will be applied. As it is difficult to accurately estimate
the amount of additional staff time the will be required to administer the field scheduling etc.
for the new facility, we have not included any Departmental administration expense in the
business plan’s operating cost projections. However, to remain consistent with the Milton’s
prevailing approach of allocating administration expenses, applicable overhead cost should be
included in the facility’s budget so that an appropriate cost burden can be considered when the
user fees (field rental rates) are determined in accordance with the Town’s cost recovery
principles and policies.
A customer service/reception area in the field house will be supervised during all prime time
hours of the indoor season to ensure that facility traffic is controlled and that users have access
The JF Group in Association with:
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Indoor Turf Study
August 2012
Town of Milton
Final Report
to consistent levels of customer service. It is assumed that the supervision will be undertaken
by part time, casual staff who will be engaged on a seasonal basis similar to the manner in
which seasonal arena operators are employed. The staffing plan also assumes that personnel
will supervise the facility during rented non-prime hours.
Rates and Fees Strategy
A number of factors and influences have been taken into account in determining the proposed
rates and fees strategy for the indoor turf facility.

The environmental scan revealed that the average and median youth rates to rent one
hour of time on a 100’ X 180’ field ranges from $182.50 to $200. However, as part of
the consultation process Milton user groups suggested that a youth rate of between
$100.00 and $149.00 would be most acceptable.

The Town’s customary pricing practices provide a subsidy for youth fees compared to
adult fees for the same programs and services.

The objectives for the project specify the Town’s intention to ensure affordable access
to the facility while maximizing the project’s economic benefit to the municipality.
In view of these considerations we have established sample rental rates to illustrate the
revenue implications of the business plan’s assumptions. Should the project proceed, the
Town’s actual pricing should consider prevailing market rates at similar facilities elsewhere as
well as Milton’s cost recovery principles and policies. Therefore, the illustrative rates are
presented for demonstration purposes only and should not be considered as a recommended
or a final price strategy.
Illustrative Adult and Youth Field Rental Rates
Time Period
One Prime Time Hour Rental Rate
One Non-Prime Time Hour Rental Rate
Adult Groups and
Individuals
Youth Groups and
Individuals
$190.000
$114.00
$142.50
$85.50
Revenue Assumptions
In combination with preceding information, the following assumptions were employed in
determining the revenue projections for the indoor facility.
The JF Group in Association with:
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Indoor Turf Study
August 2012
Town of Milton
Final Report
Two-field bubble

There will be 65 hours of prime time available on each field, each week of the 24 week
season. Based upon the demand analysis, it is likely that the vast majority of prime time
hours will be rented. However, operators of other indoor turf facilities suggest that the
4:00 pm weekday time slot and after 7:00 pm on weekend days are sometimes difficult
to rent. Based on these factors, we have assumed that 90% of prime time hours will be
rented. Furthermore, we anticipate that this rental level will be achieved shortly after
the facility is developed. Therefore, we anticipate that, on average, nine of ten available
prime time hours will be rented beginning the first year of the facility’s operations.

Non-prime time use of indoor turf facilities is generally sporadic and limited. For this
reason, we have projected that 5% of the 40 non-prime time hours on each field will be
rented each week. This rental rate could increase if the school includes the indoor
facility as part of its academic or intramural programs. However, we have not included
this possibility as part of our revenue projections because the associated financial
implications would be resolved through discussions between the Town and the Board.

To provide a conservative revenue projection, we have assumed that all rentals in the
two-field bubble would be at the youth rate – meaning that revenues would improve by
about 25% for each hour rented to adults if field time was available for non-youth users.

The proposed operating profile does not contemplate that the Town will undertake any
programming activities at the facility. Furthermore, the field house will not be outfitted
to offer retail or food and beverage services - that are sometimes available in other
indoor turf venues. Therefore, field rent is the only revenue source anticipated for the
facility.
Based on the preceding information, the two-field bubble will produce gross revenue of
approximately $408,000 in its first year of operation. It is assumed that field utilization will
remain relatively constant for the first five years of operation and that revenues will climb as a
result of rental fee increases – that are projected at approximately 2% per year.
Four-field bubble
While Milton based user groups suggest that there is a certain amount of latent demand for
indoor turf time, it is impossible to define the degree to which local turf field needs are unmet.
Adding to this uncertainty, there is no accurate data about the number of Milton residents that
are currently using turf facilities in other jurisdictions. Additionally, we can only speculate
about the number of users that would migrate to a Milton turf venue from the facilities they
currently patronize.
Given that population increases will raise demand beyond the capacity of a two field facility, it
is important that Town officials have a context from which to assess the financial implications
The JF Group in Association with:
Monteith Brown Planning Consultants
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Indoor Turf Study
August 2012
Town of Milton
Final Report
and risks associated with developing a facility to meet both immediate and long term indoor
turf field needs.
To establish this context, we have developed the revenue implications of the four-field bubble
based upon the preceding assumptions with the following caveats.

two of the four fields will produce the same revenues levels as projected for the smaller
bubble;

a range of prime time rentals for the third and fourth field has been established –
beginning at 10% of available time and rising in 10% increments to 100% capacity.

given the availability of the more prime time hours, we have assumed that adults will
have greater access to the fields than would be the case in the smaller facility. The
proportion of adult use begins at 90% at the lowest level of the rental range and
decreases by increments of 10% in accordance with each 10% rise in facility rentals by
youth. The proportion of adult and youth utilization normalizes at 50% for the third and
fourth fields after the entire facility reaches 75% of its capacity.
The following table presents the field utilization and revenue implications of these variables.
Revenue Implications of Fields Three and Four of the Large Bubble
PT Hours
Rented on
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
Fields 3 - 4
Adult Use
90%
80%
70%
60%
50%
50%
50%
50%
50%
50%
Youth Use
10%
20%
30%
40%
50%
50%
50%
50%
50%
50%
Adult Hrs
281
499
655
749
780
936
1,092
1,248
1,404
1,560
Youth Hrs
31
125
281
499
780
936
1,092
1,248
1,404
1,560
Incremental
Revenue
$57,798 $112,632 $164,502 $213,408 $259,350 $311,220 $363,090 $414,960 $466,830 $518,700
Total Field
Revenue
$466,146 $520,980 $572,850 $621,756 $667,698 $719,568 $771,438 $823,308 $875,178 $927,048
Note: the preceding incremental revenue and total field revenue projections reflect the proposed youth and adult
field rental rates without the influence of any annual price increases.
Cost Assumptions
The following assumptions have been utilized in projecting the operating costs of the indoor
turf facility. Where applicable, the cost differences between the two-field and four-field
structures are identified.

It is assumed that the Town would implement a relatively low-cost operating profile for
the new indoor turf facility. In keeping with this approach, the staff deployment
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~ 41 ~
Indoor Turf Study
August 2012
Town of Milton
Final Report
strategy contemplates on-site supervision of the field house during the facility’s prime
time hours as well as rented hours during non-prime time periods. Given that there is
no difference in the number of prime time hours in either sized bubble, the labour costs
are expected to be the same for both alternatives. The projected labour cost is based
on staff coverage for 3,216 hours over the 24 week season at a seasonal casual wage
rate of $20.88 per hour (including benefits). The supervision time allocation allows for
two staff to be on-site during prime time and non-prime time rented hours and
therefore light cleaning duties and equipment surveillance can be accommodated within
the labour budget.

The utility expense projection for each bubble option is based on the anticipated level of
consumption of natural gas and hydro-electric energy multiplied by the price per unit of
each commodity – i.e. by kilowatt hour of electricity and cubic metre of gas. Utility
consumption can be influenced by a number of uncontrollable factors including size and
location of the structure, outside temperature, barometric pressure and weather
conditions (wind). Additionally operating procedures such as preferred in-use
temperature, facility traffic, non-use temperature, air pressure settings, security
practices, etc. can have a positive or detrimental effect on energy consumption. In
combination, these factors cause each dome structure to have unique characteristics
and distinctive qualities that will impact utility costs of operations. Furthermore
uncontrollable influences that have energy consumption consequences – such as a very
cold and windy winter – can cause significant fluctuations between operating years of
the same bubble. In an effort to present a conservative utility cost estimate, we have
increased the manufacturer’s consumption projections by a factor of 100% and applied
the local energy prices for both gas and hydro electricity.

Annual bubble installation and take down expense, which includes a contingency for
storage, is based upon estimates provided by the manufacturer and are consistent with
similar examples of bubble operators’ contracts for installation, take down and storage
services.

The estimated cleaning/janitorial expense takes into account cleaning strategies and
related costs at comparable bubble examples. It is assumed that the on-site Town
supervisory staff will undertake light cleaning duties as part of their daily operating
routine. The business plan’s estimated cleaning expense would support about 2 hours
per day of supplementary janitorial services in the two-field bubble and 4 hours per day
in the large facility – based on compensation and benefit rates similar to the Town’s
wage scale.

Other general operating costs include telephone/internet/communications, general and
equipment maintenance, turf maintenance and miscellaneous expenses. The estimate
for each expense item is based on comparable bubble operations and has been adjusted
in accordance with the size of the two-field and four-field options.
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Monteith Brown Planning Consultants
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Indoor Turf Study
August 2012
Town of Milton
Final Report

The financial forecasts include a capital reserve contribution that will be applied to the
replacement of the field turf. The reserve contribution is based on a replacement cost
of $750,000 and assumes that new turf will be required after eight years of service. The
contribution calculation also assumes that the HCDSB will be responsible for half of the
replacement cost.

The financial forecasts include a capital reserve contribution that will be applied to
replacing the bubble membrane. The amount of the contribution is based on the
estimated cost of replacing the membrane (only) which is assumed to be 60% of the
total capital cost of each bubble alternative (the membrane cost is $401,500 for the
two-field bubble and $676,800 for the four-field bubble). According to the bubble
manufacturer, the membrane’s life is at least 15 years. The calculation also assumes
that the Town will be entirely responsible for the membrane’s replacement.
The following table presents the cost estimates for the first year of operation for each bubble
option.
Two-field Bubble
Labour
Utilities – Gas and Hydro
Four-field Bubble
Cleaning/Janitorial Services
Telephone/Internet/Communications
General & Equipment Maintenance
Turf maintenance
Miscellaneous
Installation/Take Down/Storage
Turf replacement - Reserve
Bubble Replacement - Reserve
$
$
$
$
$
$
$
$
$
$
67,150
83,205
6,000
6,000
4,500
1,500
1,000
85,000
46,875
26,764
$
$
$
$
$
$
$
$
$
$
67,150
136,058
12,000
6,000
9,000
3,000
2,000
125,000
46,875
45,120
Total Expenses*
$
327,995
$
452,203
Note: * the total expense projection does not include an allocation for additional Department
overhead or consideration for the potential of debt service costs related to the possible need for
project financing (if any). Both of these costs should be ultimately included in the facility’s budget
and also be factored into the final fee strategy.
Financial Projections
Two-field bubble
If the project proceeds, the Town intends to maintain a relatively modest and straightforward
operating profile of the indoor turf facility. The facility would not be actively programmed by
the municipality nor would retail or food and beverage services be on site. As such, field rent
will represent the single revenue source for the facility. (Note: if field time was available and
The JF Group in Association with:
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Indoor Turf Study
August 2012
Town of Milton
Final Report
municipal programming activities would not be in conflict with community user group
initiatives, the Town could elect to offer camps etc. during Christmas and March Break to
improve revenue production).
In view of the foregoing operating profile, improvements to revenue performance would only
be possible through: (1) escalations in the price to rent an hour of field time; (2) increased
number of rented fields; or (3) elevated proportion of time rented at the higher adult rate. Our
demand analysis suggests that there is currently a need for about two indoor fields and
therefore the majority of available prime time would be rented in the two-field bubble. We
have also assumed that the amount of time required to meet the needs of youth groups will
leave very little time available for adult rentals. Therefore, we expect that revenue increases in
the small bubble will largely arise through price escalations. We have assumed that the rental
fees will increase by 2% per year.
Variable operating costs which include utilities, cleaning/janitorial services, telephone, internet
and communications, maintenance and miscellaneous expenses have been increased by 2% per
year to account for inflation.
Fixed costs including contracted services for installation, take down and bubble storage as well
as capital reserve contributions have been carried at the same rate over the five year forecast.
The following table presents the estimated revenue and cost performance of a new two-field
indoor turf facility over its first five years of operation. It is noteworthy that the net financial
performance presented below does not include any uplift in municipal administrative costs that
may be incurred for facility permitting, space allocation, supervision, or promotion.
Two-Field Bubble – Five Year Financial Forecast
Revenue
Variable Expense
Fixed Expense
Total Expense
Net*
$
$
$
$
$
YR1
408,348
169,355
158,639
327,995
80,353
$
$
$
$
$
YR2
416,515
172,742
158,639
331,382
85,133
$
$
$
$
$
YR3
424,845
176,197
158,639
334,836
90,009
$
$
$
$
$
YR4
433,342
179,721
158,639
338,360
94,982
$
$
$
$
$
YR5
442,009
183,316
158,639
341,955
100,054
Four-field bubble
The additional two fields contained in the larger bubble would create the opportunity for the
Town to incrementally increase facility revenue by: (1) renting more fields to meet rising
demand caused by population increases; and (2) servicing a segment of the adult market that
would pay the higher field rental price. The table on page 40 illustrates the revenue
implications of various field rental rates in 10% increments. Given that there is no accurate
data to illustrate the amount of local latent demand and in view of to our commitment to
provide conservative revenue projections, we have assumed that only 10% all available prime
time on the additional two fields will be rented in year one and increase by 10% per year
thereafter. We have also assumed that the amount of adult use will begin at 90% in year one
The JF Group in Association with:
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Indoor Turf Study
August 2012
Town of Milton
Final Report
and fall by 10% per year over the five years of the projections. Conversely, youth use will climb
by an equal 10% increment over the forecasted period. Additionally, we have assumed that
field rental fees will increase by 2% per year.
The variable and fixed cost assumptions explained in the previous section have been applied to
the financial projections for the four-field bubble. The following table presents the estimated
revenue and cost performance of a new four-field indoor turf facility over its first five years of
operations. As mentioned above, the net financial performance presented below does not
include any uplift in municipal administrative costs as a result of the bubbled facility.
Four-Field Bubble – Five Year Financial Forecast
Revenue
Variable Expense
Fixed Expense
Total Expense
Net
$
$
$
$
$
The JF Group in Association with:
Monteith Brown Planning Consultants
YR1
466,146
235,208
216,995
452,203
13,943
$
$
$
$
$
YR2
523,211
239,912
216,995
456,907
66,303
$
$
$
$
$
YR3
587,638
244,710
216,995
461,705
125,933
$
$
$
$
$
YR4
651,289
249,604
216,995
466,600
184,689
$
$
$
$
$
YR5
714,042
254,597
216,995
471,592
242,450
~ 45 ~
Indoor Turf Study
August 2012
Town of Milton
Final Report
Summary of Findings, Conclusions and Recommendations
As specified by the project objectives, this study was to assess the short and long-term demand
for an indoor turf facility to meet the needs of Milton’s community user groups. It was also to
illustrate the capital cost to provide the facility including a recommended provision and
development approach. Finally, it was to present the financial implications of operating and
maintaining the preferred facility option.
The following sections summarize the most significant findings of the study that are germane to
the project objectives.
General Observations

For more than 10 years Milton has been one of Canada’s fastest growing communities.
This trend is expected to continue with the Town’s population expected to double
between 2011 and 2021 and reaching more than ¼ million residents by 2031.

The demographic profile of the Town’s population (age, ethnicity, income and education
levels) suggests that Milton residents will continue to engage in sport, recreation,
physical activity and other leisure pastimes at participation rates that are at least
consistent with provincial and national levels.

Based on the use profiles of existing indoor turf venues, it is probable that soccer would
be the predominant activity that would occupy most time available at a new Milton
indoor turf facility.

Although soccer’s torrid pace of growth has recently tempered, there continues to be an
increase in the sport’s popularity, especially in indoor soccer programs.

In response to demands for indoor turf venues, a number of indoor turf facilities have
been developed in Southern Ontario and Peel Halton Region over the past five years.

Six Milton based soccer associations and four other sport groups have indicated an
interest in renting a certain amount of field time in the proposed indoor turf facility.
Demand for Indoor Turf Fields

Two analytical techniques were used to project current and future demand for indoor
turf fields. The analysis took into account user group needs to serve current program
participants, the amount of demand currently served by existing indoor turf facilities or
gymnasia, the likelihood that participants will migrate to a new facility in Milton and
affordability issues.
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Indoor Turf Study
August 2012

Town of Milton
Final Report
In combination, the analysis determined there is current demand for two 100’ X 180’
indoor turf fields arising from Milton’s community user groups. Based on population
growth and assuming that sports participation rates remain constant, demand will
increase to the need for about four similar sized fields by 2021.
Facility Provision Alternatives

A review of the three most predominant alternative provision and operating models
that are generally applied to municipal recreation facilities revealed that relationships
with private, public and not-for-profit partners have various merits and drawbacks.
Furthermore, each project has unique characteristics and circumstances which must be
considered in choosing the most appropriate partner and facility provision strategy.

The timing of the need for a Milton indoor turf facility is coincidental with a new Halton
Catholic District School Board development that will include an all-weather turf
football/soccer field. The HCDSB has expressed interest in partnering on the project and
would work with the Town to develop a mutually acceptable approach for the winter
operation should a municipal indoor turf facility be jointly developed on the school’s
field. A joint-venture between a municipality and the HCDSB would result in capital cost
savings to project and potentially produce operating advantages through programmatic
synergies.

Developing the indoor turf facility in conjunction with the HCDSB project would require
that the turf field be operated on a seasonal basis to allow school to deliver outdoor
academic and intramural programming as well as fulfill its inter-collegiate commitments.
Therefore, a joint-ventured facility provision strategy would require that the facility is an
air supported dome system that can be removed for the spring/summer months. The
selection of the bubble size and the length and schedule of the indoor season would be
determined such that the domed structure does not negatively impact the school’s use
or rental of the outdoor field.
Capital Cost Implications

The Town’s capital cost to construct a two-field air supported structure including all
equipment, site works, field house modifications and contingencies would be $1.938M –
or about $31 per square foot.

The Town’s capital cost to construct a four-field air supported structure including all
equipment, site works, field house modifications and contingencies would be $2.231M –
or about $20 per square foot.
The JF Group in Association with:
Monteith Brown Planning Consultants
~ 47 ~
Indoor Turf Study
August 2012
Town of Milton
Final Report
Operating Cost Implications

Based on the assumptions contained in the description of the business plan, the twofield indoor turf facility would generate net proceeds of approximately $80,000 in its
first year of operation. This performance would slowly climb to over $100,000 net
revenue in year five.

Based on the assumptions contained in the description of the business plan, the fourfield indoor turf facility would generate net proceeds of approximately $14,000 in its
first year of operation. This performance would quickly climb to over $240,000 net
revenue in year five.
Conclusions

There is sufficient current demand to warrant the development of the two-field indoor
turf facility. Satisfying demand in the immediate term would coincide with the timing of
the pending HCDSB school development.

Partnering with HCDSB would provide capital cost advantages. The indoor turf facility
could be constructed more economically than if it was a standalone Town project or if it
were to be developed using another facility delivery model with a different partner.
Creating a P2 that results in constructing a seasonal structure over an all-weather turf
field that is already planned for the school would effectively pool public funds for the
benefit of students and the broader Milton community. At the very least, this delivery
model would involve capital cost avoidance equivalent to the construction cost of the
artificial turf field.

An air supported dome structure would offer flexibility in terms of providing indoor and
outdoor recreation environments over the course of a 12 month playing season.
Beyond the seasonality benefits, facility users enjoy the environment within bubbles – in
some cases expressing a preference over a permanent building.

Air supported dome structures are very cost effective to construct. For illustration
purposes, the estimated capital cost for the four-field bubble in this study is less than
$2.25M. The most recent municipal example of a similar sized indoor turf facility
accommodated in a traditional building cost more than $11M in 2009. There are other
municipal indoor turf permanent facility examples that are even more costly.

The development of a four-field bubble would have no negative impact on the playing
conditions of the outdoor field because the grade beam would be entirely outside the
field of play. Additionally, the larger structure could accommodate certain school
activities that require a “full field environment” which would offer a degree of flexibility
in terms of the length of the indoor season.
The JF Group in Association with:
Monteith Brown Planning Consultants
~ 48 ~
Indoor Turf Study
August 2012
Town of Milton
Final Report

The capital cost to construct a four-field air support structure is about $295,000 higher
than the cost of the two-field bubble – representing an incremental increase of 15%.
Assuming that the Town purchases a second two-field bubble to meet future indoor
field turf demand, the total municipal investment in the twinned facility would be more
than $2.6M (in 2012 dollars) – which would be 17% more than the cost of the four-field
bubble.

It is likely that the construction of a four-field facility would result in an over-supply
situation in the short term. However, the additional two fields would be available to
accommodate the needs of all Town user groups (including adults that would pay the
higher rental rate) as well as existing leagues and programs that are currently operating
elsewhere in less desirable venues. The time available on the additional fields might
also be utilized to organize new leagues and program so long as they did not conflict
with the programming initiatives of Milton’s community user groups. This program
profile could be perpetuated until population growth resulted in increases in field
demand consistent with the four field supply.

Based upon all assumptions within this report, the financial forecasts anticipate that
both the two-field and four-field bubbles would produce net proceeds in their first years
of operation. However, because the two-field bubble would be operating virtually at
capacity from its inception, its year over year revenue gains would be primarily linked to
increases in field rent. On the other hand, the availability of time in the larger (fourfield) bubble would present opportunities to grow revenues by attracting a wider variety
of renters or through the implementation of program initiatives. While it will cost
incrementally more (per hour) to operate the four-field bubble, even our conservative
revenue forecasts project that the larger facility’s net operating performance would
surpass that of the two-field bubble in the third year of operation. Indeed, our revenue
forecasts suggest that the four-field facility will generate collective net proceeds that
exceed the smaller bubble by more than $265,000 by the end of the fifth year.
Interestingly, this net revenue differential is only $30,000 less than the incremental
capital cost difference of constructing the larger facility.
Recommendations
We recommend:

That in the near term, the Town undertakes to develop a new indoor turf facility.

That the new indoor turf facility be an air supported four-field dome structure.

That the Town develop the facility as a joint venture with the Halton Catholic District
School Board on the new school site at Louis St. Laurent and Bronte Road.
The JF Group in Association with:
Monteith Brown Planning Consultants
~ 49 ~
Indoor Turf Study
August 2012
Town of Milton
Final Report

That the Town and HCDSB initiate discussions to develop a mutually acceptable
agreement that deals with the considerations and issues contained in various sections of
this Indoor Turf Facility Final Report.

That the Town and HCDSB reach mutual agreement regarding an acceptable operating
approach for the indoor facility.

That the Town assumes the management and operating responsibility for the indoor
dome facility while remaining open to accepting and evaluating operating proposals
from potential partners.

That the Town take into account all costs related to the facility – including Department
overhead costs, potential debt service charges and other items that may not be included
in this report – when it applies the municipality’s cost recovery principles and policies to
establish a pricing strategy that will determine field rental rates.
The JF Group in Association with:
Monteith Brown Planning Consultants
~ 50 ~
Appendices
Appendix One
Summary of User Group Input
Summary of Input from Interviews & Surveys
Organization
About the Group
(Activities, Trends,
Registration)
Milton Youth
Soccer Club
Youth and adult
recreational and youth
competitive soccer
association. In
2011/12, the club had
950 indoor soccer
players and 3200
outdoor soccer players.
Milton Soccer
Academy
Current Indoor
Usage Levels
200 hours per week at
turf facilities in
Acton, Burlington,
Oakville, Mississauga,
and Stoney Creek.
75 hours per week in
Milton (gymnasiums).
Statement of Need
Design
Preferences
Projected Usage
(players, hours)
Very interested in
Milton indoor turf
field for youth league
practices and training.
Would grow indoor
league (add a fall
league) if there were
available facilities.
Likely to use a
small and a large
field, and no
preference in
structure type.
Should have
viewing area, office
space, change
rooms, field
partitions.
Youth and Adult
31 hours per week in
recreational and
Milton (at the Milton
Soccer Centre).
competitive soccer
organization. In
2011/12, the club had
470 indoor soccer
players and 800 outdoor
soccer players.
Not very interested in
a municipal indoor
turf facility. Have
capacity to
accommodate growth
at their own facility.
200’ x 100’ field, 4 prime time hours
bleachers,
per week during
equipment storage, peak season.
drop box for referee
sheets, change
rooms, and showers
in an air supported
bubble.
Milton Soccer
League
Adult recreational and N/A
competitive soccer
league. The group does
not currently offer any
indoor programs, but
did have 450 outdoor
players in 2011.
Very interested in
indoor field for adult
league soccer.
360’ x 200’ field,
locker rooms with
showers, multipurpose room, no
structure
preference.
20 prime time hours $150-$199/hr for
N/A
per week during
prime time, and
peak season.
$100-$149/hr for
non-prime time
during peak season.
Urban Sports
Club
Adult multi-sport
organization with a
variety of sports,
including indoor soccer
and Ultimate Frisbee.
Could use an indoor
turf field to keep up
with youth and adult
league demand.
Likely to use a
small and a large
field, and no
preference in
structure type.
Storage lockers for
equipment would
be helpful.
10 to 12 prime time
hours per week
during peak season
and summer seasons.
29 hours per week in
various locations
around Milton (mostly
gymnasiums).
100 prime time
hours per week and
5 to 7 non-prime
hours during peak
season. 5 to 20
prime and non-prime
hours per week
during off-peak
season.
Willingness to Pay Other Notes
$100-$149/hr for
prime time and less
than $100 for nonprime during peak
season. $50-$99/hr
for prime time and
less than $50 for
non-prime time
during off-peak
season.
Willing to be an
active participant in
the operation of the
facility.
$100-$149/hr for
prime time and less
than $100 for nonprime during peak
season. Less than
$50 for prime and
non-prime during
the simmer.
N/A
$100-$149/hr for
prime time and less
than $100 for nonprime during peak
season. $50-$99/hr
for prime time and
less than $50 for
non-prime time
during off-peak
season.
N/A
Organization
About the Group
(Activities, Trends,
Registration)
Current Indoor
Usage Levels
Statement of Need
Milton Sports
Club
Adult multi-sport
organization with a
variety of sports
(softball, volleyball,
badminton).
Milton Lacrosse
Association
Offers recreational and 20 hours per week in
competitive field and
Milton (Tonelli
Arena).
box lacrosse. The
group had 362
registrants for box
lacrosse in 2011/12 and
40 field lacrosse
players.
Milton Girls
Softball
Association
Youth recreational/
8 hours per week in
Interested in indoor
Milton (gymnasiums). field for youth
house league and
practice and training.
competitive girls’
baseball organization.
The group has
approximately 300
players, with 40 making
use of indoor space for
training.
Milton Cricket
Ground
Adult cricket
0 hours per week.
organization. Group is
just becoming
established, with their
outdoor cricket season
starting in 2012. Club
has 50 members.
Design
Preferences
13-14 hours per week Not very interested in No design
preferences.
in Milton
a municipal indoor
(gymnasiums).
turf facility. Club
does not currently
offer turf sports.
Unsure
Willingness to Pay Other Notes
Less than $100/hr
for prime and nonprime hours during
peak season.
N/A
6 to 9 prime time
Less than $100/hr
hours per week
during peak season
during peak season. and $50 to $99/hr
during off-peak
season for prime
time hours.
N/A
200’ x 100’ field in
an Air Supported
Bubble, with
pitching and batting
cage area, and is
multi-purpose for
many sports.
2 hours on week
days and weekends
during prime time
hours per week
during peak season.
Less than $100/hr
for prime and nonprime hours during
peak season.
Their participation is
cost dependant. If
too expensive, they
will stay in gyms.
200’ x 100’ field
with a hard surface
(moveable) in the
centre for cricket,
and batting cages.
20 prime time and 5
non-prime time
hours per week
during peak season.
2 to 5 prime time
and 2 to 5 non-prime
time hours per week
during off-peak
season.
Less than $100/hr
for prime and nonprime hours during
peak season. Less
than $50/hr for
prime and nonprime hours during
off-peak season.
Their participation is
cost dependant. If
too expensive, they
will stay in gyms
Interested in indoor
200’ x 100’ field,
turf field for youth
with no preference
for building type.
league practice and
training. They expect
their league size to
grow as Milton grows.
Very interested in
using an indoor turf
facility for adult
leagues and youth
training.
Projected Usage
(players, hours)
COMS-025-12 Schedule B - Summary of Stakeholder Group Comments
Indoor Turf Study - Comments From Stakeholder Groups
Group
Comment
Milton Youth Soccer Club
Supportive of the findings and
recommendations in the Indoor Turf
Study
Concerned with the secondary
The measurement is an analytical
demand measurement. 10 players per metric not a ratio and not meant to be
hour on a field is not high enough.
an illustration of the average number
of players on a pitch per hour. The
calcualtion assumes some players
play multiple times per week and
others only once. The JF Group
reviewed the metric at the request of
the stakeholder and ammended the
text in the study to reflect 10-12
players per hour.
The Milton Soccer Centre has capacity The findings in the demand analysis of
to assume some of the demand
the study took into account all factors
identified.
related to current supply and demand
and concluded two additional fields are
required to meet the current needs of
the Milton community.
Milton Soccer Academy
Milton Soccer Academy
Milton Soccer Academy
Milton Soccer Academy
Outcome
Concerned with some of the other
Hours of use projections were
stakeholder groups capacities to meet obtained from individual stakeholder
gg
g p The studyy took all of the
the demand theyy have suggested.
groups.
projections and reduced them by
approximately 25% for reasons
detailed in the study. A secondary
analysis was completed to validate the
demand projections.
What is the timing for the bubble?
As outlined in the staff report, the
Could it be deferred by at least a year? HCDSB is anticipating to start
construction on the field in the fall of
2012 or early spring of 2013. If the
project moves forward, the bubble
would be ready for play in November
2013. In order to realize the cost
efficiencies, the grade beam for the
bubble must be done in concert with
the field construction so delaying a
year is not a viable option. The
erection of the bubble in November of
2013 could be delayed however the
demand analysis demonstrates the
need for the facility to be operational
immediately.