CS4L

PARTNERING ‘RECREATION’ WITH ‘SPORT’ THROUGH CANADIAN SPORT FOR LIFE Promising Practices, Important Opportunities

Gary Shelton, Paul Jurbala, Richard Way & Mark Vuillamy

Discussion Paper V1December 2010

2 DISCUSSION PAPER V1, DECEMBER 2010

DISCUSSION PAPER V1, DECEMBER 2010 3

Preface

Many individuals and organizations have contributed over the past two years towards the development of this discussion paper.

In the fall of 2008, the Alberta Recreation and Parks Association (ARPA) struck a Community Sport Development Committee mandated to “to determine the most promising ways in which community recreation and parks departments can facilitate and advance ‘sport for life’ at the local grassroots level.” The Committee was composed of recreation and sport professionals, drawing representation from municipal recreation services, provincial sport organizations, the Government of Alberta, community sport councils, and the Alberta Recreation and Parks Association. Many of the recreation professionals had a background as sport participants, coaches, o!cials and/or administrators, and brought this unique perspective to the table.

Gary Shelton, Executive Director of the Edmonton Sport Council, as a member of this committee undertook to identify the municipal role in Sport for Life through an analysis of Long Term Athlete Development materials and other relevant policy documents. His work was presented back to the committee and also to the Canadian Sport for Life Expert Group headed by Richard Way as a rough document for further development.

Richard Way then attended the January 2010 meeting of the Community Sport Development Committee, and o"ered to use national resources to prepare a #nished version of the document to bene#t all Canadian municipalities. Subsequently, Richard and Gary teamed up with Paul Jurbala, a sport and recreation professional from Ontario, write the #rst draft of this paper.

This draft was then “workshopped” with approximately 50 participants in “Community-based Partners in Sport,” a preliminary session to the April 2010 Canadian Sport for Life Conference in Ottawa. Participants at this workshop included representatives of municipal recreation, provincial recreation and sport organizations, community sport councils, national sport organizations, provincial and the federal government, provincial recreation and parks associations, and Canadian Sport Centres.

Mark Vulliamy, a Parks and Recreation manager from Vancouver, was recruited to prepare the #nal version of “Partnering Recreation with Sport,” incorporating feedback received at the Community-based Partners in Sport session.

This document in a sense remains a working draft. It re$ects the views and aspirations of many people who are working to bring about a closer relationship between recreation and sport in their local communities, and in the process are gradually developing best practices to share with others. The underlying intent is to encourage further initiatives to bring sport and recreation together with the expectation that these initiatives will expand and improve upon the material presented here.

partnering recreation with sport


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table of contentsINTRODUCTION RECREATION AND SPORT: INTRODUCING THE PLAYERS STARTING THE DIALOGUE: CANADIAN SPORT FOR LIFE (CS4L) AS A UNIFYING PARADIGM PROMISING PRACTICES: INITIATIVES TO ALIGN RECREATION AND SPORT Practice 1: Integrated Sport and Recreation Strategies Practice 2: Community Sport Councils Practice 3: Joint-use Facility Agreements and Innovative Facility Partnerships Practice 4: Fair and Equitable Facility Allocation Practice 5: Resources for Recreation/Sport Integration Practice 6: Integrating CS4L into Sport/Recreation training programs Documenting Other Promising Practices and Initiatives A ROAD MAP TO THE FUTURE

PART ONE: SPORT FOR LIFE -A STAGE BY STAGE GUIDE FOR MUNICIPAL PRACTITIONERS PHYSICAL LITERACY

Active Start (AS): Birth to +/-6 years FUNdamentals (FUN): +/-Ages 6-8 for Girls, 6-9 for Boys Learning to Train (L2T): +/-Ages 8-11 Girls, 9-12 Boys

MUNICIPAL RECREATION AND PHYSICAL LITERACY ENHANCING EXCELLENCE

Training to Train (T2T): +/-12 – 16 years Training to Compete (T2C): +/-15 – 21 years Training to Win (T2W): 18 years +

MUNICIPALITIES AND ENHANCING EXCELLENCE ACTIVE FOR LIFE MUNICIPALITIES AND ACTIVE FOR LIFE PART TWO: GETTING STARTED: RECOMMENDATIONS TO INITIATE SPORT/RECREATION INTEGRATION GENERAL RECOMMENDATIONS MUNICIPAL SECTOR RECOMMENDATIONS

Municipalities and Participants with Physical Disability Facility Planning Recreation, Sport and Physical Activity Program Development Inclusivity in Recreation, Sport and Physical Activity Programming Municipalities and Sport Tourism REFERENCES

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Public sector recreation and organized amateur sport share common interests and objectives. Both sectors are engaged in the delivery of opportunities for physical activity and #tness to Canadians. Both are major providers of programming and facilities used for sport and exercise. But, despite the overlaps between these two sectors, both have traditionally operated, for the most part, independently from one another. Yet both recreation and sport have much to gain from a closer alignment of values and mission, and a better coordination of roles and responsibilities.

This paper makes the case for building a collaborative relationship between recreation and sport, and in particular, between municipal level recreation administrations (hereinafter called “Recreation”) and community-based sport organizations (hereinafter called “Sport”). The respective characteristics and strengths of Recreation and Sport, the factors which separate them and the obstacles to a productive partnership are assessed at the outset. The potential gains of partnering are then examined and a unifying paradigm is proposed: Canadian Sport For Life (CS4L).

CS4L has emerged relatively recently as a framework and philosophy for promoting life-long engagement in sport and the ethical pursuit of sports excellence. From its origins in national sport policy, CS4L has grown to become a movement of like-minded individuals and organizations committed to improving the quality of sport in Canada. The core values and foundational principles of CS4L, which are outlined in this paper, go far beyond those traditionally associated with sport and athleticism to mesh at the community level with the central preoccupations of recreation.

Several initiatives recently taken in the recreation sector, some anticipating and some directly inspired by CS4L, are beginning to bridge the gap between the Sport and Recreation sectors. This paper documents a number of “promising practices” and identi#es fertile ground for further innovative collaborations and partnership building.

Finally, this paper addresses the strategic considerations of planning, policy-making and programming, and concludes with recommendations for Recreation to translate CS4L values and principles into action. A bibliography of works cited in the text is appended. In addition, many speci#c initiatives and programs are referred to throughout this paper as potential examples to emulate; further background on these, including contact coordinates, can be found at www.canadiansportforlife.ca.

An evolving partnership of Sport with Recreation will inevitably lead to greater engagement with Education and Health systems, two other sectors with overlapping interests in #tness and active living. As the partnership matures and these linkages are forged, the outcomes will be not only higher levels of health and #tness but, more signi#cantly, improved performance of Canadians in daily living, in the workplace, in every facet of their lives. The ultimate bene#ciaries of a closer alignment of Sport and Recreation will be the people of Canada.

Introduction

“COMING TOGETHER IS A BEGINNING; KEEPING TOGETHER IS PROGRESS; WORKING TOGETHER IS SUCCESS.”

HENRY FORD


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RECREATION AND SPORT:Introducing the Players



Recreation and Sport: Introducing the Players

Sport and recreation are complex and highly di"use entities, co-existing on a broad continuum spanning national to local community concern. Governments at all levels, along with non governmental agencies and non-pro#ts, are active in both sectors, as are business and commercial interests. At least equally important is the informal involvement of individuals and small groups at the local community level. The sport and recreation sectors are furthermore linked with each other and internally through a myriad of organizational, policy and funding relationships.

As experienced by participants, recreation includes sport but encompasses in addition many other activities: voluntary pursuits undertaken for relaxation, entertainment and refreshment of body and mind. Recreation contributes to personal health and wellbeing and, as it involves interaction with others, builds and sustains community as well.

From a public policy perspective the key characteristic of recreation is that municipalities -- governments closest to the community level -- are the lead providers. Cities and towns across Canada have made an enormous aggregate investment in public recreation infrastructure in the form of community centres, arenas, pools, gymnasia, playing #elds and many other facilities. These facilities are typically programmed to meet the needs of all leisure activity, not just those of sport. With the object of promoting active living amongst the population at large, the services provided are oriented to achieve the broadest possible participation.

Most municipalities, through their recreation departments, provide a core of similar programs and facilities, including instruction, supervision and access to structured sport and physical activity in or at arenas, pools, gyms or more specialized amenities. Since municipal recreation is less subject to restrictive regulations or de#ned standards than are most other municipally-provided services, the delivery and experience of public recreation is highly variable from place to place. Recreation services are in the main locally-driven; they re$ect the size, composition, and preferences of the community. In some mid-to-large municipalities, recreation departments give priority to ensuring access by vulnerable populations including youth at risk, seniors, native Canadians, or low-income residents. Other municipalities may concentrate on delivering youth soccer, swimming lessons or other broad-based and general-interest programs. Or the services may be focused on providing speci#c opportunities such as parks and trails, arts and culture, or parent-and-tot drop-ins. The common threads are a commitment to serving the welfare of the community, an understanding of physical activity as a key component of community well-being, and a corps of professional sta" who wear many hats as they cope with the daily challenges that diversity can bring.

…sport and recreation have common interests and common ground to build upon. Sport needs recreation because athletes are largely dependent for training and competition opportunities on the physical infrastructure the municipality owns and operates(;)…recreation needs sport as a source of expert coaching, leadership and inspi-ration to attract, maintain and expand participation...


In contrast, senior governments take a much more prominent role with sport, and have long established relations with Provincial and National Sport Organizations (PSOs and NSOs), as well as with multi-sport bodies such as Sport Matters and True Sport. In this formal context there is a high degree of vertical organization and consistency in standards, with activity structured around local, provincial, national and international competition and training for these events. The focus is oriented to achieving the highest physical performance levels possible, with participation traditionally pyramidal in form and progressively exclusionary.Sport and recreation are both beset by a set of issues and obstacles, which challenge optimal functioning and appear to work against alignment of the two sectors. These issues and obstacles include:

!" Con$icting priorities of government: All three levels of government are engaged in making policy and investments a"ecting Sport and Recreation. However, as vertical lines of communication are weak, often governmental interventions intended to be supportive have acted at cross purposes to one another.

!" Declining participation in sport and active living generally: The decline in participation rates correlates with a startling rise in the numbers of Canadians -- especially children and youth – who are overweight or obese. The factors here are numerous and complex, but there is a likely correlation with proliferating and seductive technologies of sedentary amusement, such as television, computers, and other electronic devices. Whatever the underlying causes, campaigns to promote active lifestyles have not in themselves been enough to reverse these disturbing trends.

!" Sectoral “Turf” issues and lack of cohesion amongst local sport organizations: Local recreation authorities and leaders in sport are often locked into opposing and entrenched positions, and display a lack of mutual understanding and respect. In addition, sport rivalry often extends beyond the playing arena, as sport organizations compete for scarce resources and for a shrinking pool of participants. The divisions between Sport and Recreation, and within each sector, impede the development and shared use of a volunteer base, orderly leadership succession and many other potential synergies.

!" Facility de#ciencies and ine!ciencies: The problems of ageing and decaying infrastructure in Canada are well documented; less attention has been paid to the inadequacies of facilities, structures and spaces speci#cally for sport and recreation. There is simply not enough space in relation to demand and that which exists is often unsuitable or outmoded in its design. These infrastructure de#cits are in many places exacerbated by poor maintenance and extended delay in lifecycle replacements and capital remediation. Compounding the problem are access restrictions due to narrowly de#ned priorities for allocation of facilities, highlighting a “landlord-tenant” relationship which typi#es the interaction sport groups often have with recreation authorities in their quest for training and event spaces.

Yet, in confronting the above issues and challenges, sport and recreation have common interests and common ground to build upon. Sport needs recreation because athletes are largely dependent for training and competition

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opportunities on the physical infrastructure the municipality owns and operates. As well, recreation participants can potentially provide a robust volunteer corps for sporting events and a wider advocacy base for sport generally. Conversely, recreation needs sport as a source of expert coaching, leadership and inspiration to attract, maintain and expand participation in physical activities. New opportunities are also emerging with a policy alignment supported at all three levels of government. The 2002 Canadian Sport Policy envisions “a dynamic and leading-edge sport environment that enables all Canadians to experience and enjoy involvement in sport to the extent of their abilities and interests and, for increasing numbers, to perform consistently and successfully at the highest competitive levels.” The Policy was initially developed and signed by the Federal, Provincial and Territorial governments and subsequently endorsed by a motion approved at the Big City Mayors’ Caucus meeting (Vancouver 2005).

Since its adoption, the Canadian Sport Policy has proved to be a de#ning framework for National and Provincial Sport Organizations, giving them a renewed appreciation and understanding of the importance of the community level, and in$uencing them to look to recreation as a key potential partner to build at that base.

Most importantly, the Canadian Sport Policy motivated the Canadian Sport Centres to publish Canadian Sport for Life (Balyi et al, 2005), a framework and philosophy for promoting life-long engagement in sport and physical activity for all Canadians, while also revitalizing Canada as a competitive force in the international arena.

Canadian Sport For Life (CS4L), as both a theoretical framework and as a dynamic movement, is here proposed as the means to strategically align and coordinatethe futures of sport and recreation.


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STARTING THE DIALOGUE:Canadian Sport For Life as a Unifying Paradigm


Train toTrain

Active for Life

Competitive for Life

Fit for Life


Starting the Dialogue: Canadian Sport For Life (CS4L) as a Unifying Paradigm

CS4L is an approach to sport and physical #tness which goes far beyond previous concepts and practices of “active living;” it seeks to provide a solid foundation of movement and related cognitive skills at the earliest stages of human development, and to nourish and sustain athletic competencies through every individual’s entire lifespan.

A key component of CS4L is Long-Term Athlete Development (LTAD), a model which incorporates and addresses the competitive and recreational interests of all Canadians from infancy to late adulthood. The chart below outlines the seven stages of LTAD wherein children #rst acquire a foundation of physical literacy through an early introduction to physical activity at the Active Start stage, followed by the FUNdamentals and Learn to Train stages. They are then prepared to enter the Active for Life stage of lifelong participation and wellness, although they may #rst choose to pursue high performance through the Train to Train, Train to Compete and Train to Win stages (Note: a breakdown of the seven stages of CS4L-LTAD, presented in terms of their implications for Recreation policy, can be found below in Section 4 – “A Road Map to the Future”).

The LTAD model is based upon a set of comprehensive principles for e"ective participant development drawn from research and the practical experience of thousands of athletes and coach-instructors. These principles are centred on developmentally-appropriate training and competition and are based on the premise that for every participant, at every moment, there is a right kind of support (coach/instructor/leader), a right kind of activity, and a right combination of nutrition and recovery to foster both optimal health and optimal performance. When fully realized, CS4L-LTAD is participant-centered, leader-driven, and administration-supported.


CS4L adheres to a set of core values, and seeks to realize one vision and one system characterized by:

!" Life-long sport participation: CS4L holds that every individual can and should be “a part of the team” to the best of their ability, and that athletic careers need not terminate at a given peak, but ideally will transition to other challenges.

!" Inclusivity: All persons should have the right to participate in sport to the extent that they desire, regardless of their age, gender, ethnicity, ability or disability.

!" Coordinated approaches over independent actions: Every athlete knows that team synergies are more powerful than individual e"ort, and this lesson should carry over to the whole organizational context which makes sport participation both possible and meaningful.

!" Complementary contributions from parents, partners, coaches, o!cials and administrators: In e"ect, it takes a village to make an athlete, and all parties involved should work from the same playbook.

!" Long-term success over short term gains and continuous improvement: CS4L looks beyond immediate “wins” and “loses” to focus on the larger victories that participation in sport can deliver, and the incremental gain in competencies and performance which will result.

The foundational principles of CS4L are what distinguish it from more traditional approaches to sport organization and physical training: CS4L is holistic in its

vision; it recognizes the parallel importance of physical education/school sports, competitive sport and recreational activity, and seeks to build synergies between these sectors.

!" Every child is an athlete: CS4L does not select out based on “natural” ability but works to bring out the inherent capabilities of every child.

!" Life proceeds through stages of development: Research shows that stages are more important than ages, and therefore training, competition and recovery programs should be based on participant readiness rather than chronological age.

!" Each stage is marked by progressive and distinct capabilities of participants:

!" In particular, there are sensitive periods during pre-puberty, puberty and early post-puberty which provide windows of opportunity for accelerated adaption to training.

!" Each stage has individual and gender-speci#c variability in terms of timing: For optimal development, sport and physical activity programs must be designed for capability and gender of the participant. As well, for competition to be meaningful, it must be appropriate to the stage of development of the participants


!" A foundation of physical literacy is critical to later pro#ciency in and enjoyment of sport: Physical literacy is analogous to language literacy; learning fundamental movement skills is essential for later-life participation and excellence in sport just as learning to read and write is fundamental to later-life academic performance. Physical literacy is best achieved by participating in a variety of sports at a young age to develop athleticism, then specializing in a particular sport later.

!" Quality programming: CS4L does not o"er a “one size #ts all” programming manual, but advocates for approaches which:

a) respond to the whole person, including developmental, physical, mental, cognitive and emotional aspects;

b) increase and sustain participation by providing guidance through the development stages;

c) employ progressive and stage-appropriate levels of challenge and adaption to develop mastery over time;

d) result in better health, disease prevention, enhanced learning, enjoyment and social interaction; leading to improved wellness; and

e) adapt and improve continuously in response to advances in sport practice, scienti#c knowledge and societal expectations.

CS4L is holistic in its vision; it recognizes the parallel importance of physical education/school sports, competitive sport and recreational activity, and seeks to build synergies between these sectors.


Above all, CS4L is a vehicle for change, ushering in fundamental paradigm shifts as summarized in the following table:

From this To this

Participation

Exclusion for non-pro!ciency Nurturing of pro!ciency

Chronological age focus Developmental stage awareness

Age cut-o"s Developmentally appropriate clustering

Early age specialization in a single sport

Physical literacy & exposure to multiple sports

Development

Results are paramount Principles are paramount

Immediate objectives Long-term objectives

Guesswork Research-based biological markers

Training Pushing down of adult training Responding to sensitive periods of adaption

Competition All about winning All about meaningful competition

OrganizationSilo approach Full system integration

Organizations acting independently Organizations working towards integration


In the six years since the Federal and Provincial/Territorial Sport Council recommended the development of a national long-term athlete development model, CS4L has facilitated progress on several fronts:

!" Resource guides published, notably:!" Canadian Sport for Life (2005)!" No Accidental Champions (2005)

!" Developing Physical Literacy: A Guide for Parents of Children Ages 0 – 12 (2008)

!" All 56 Sport Canada-funded national sport organizations developing sport-speci#c LTAD programs.

!" CS4L and LTAD promoted through a series of national roundtables, workshops and conferences.

!" CS4L introduced to sport, recreation and education organizations across Canada, including to the Canadian Parks and Recreation Association (CPRA) and Provincial/Territorial Recreation Organizations.

!" Policy changes and investment at the Provincial/Territorial level as governments begin to support Provincial Sport Organization LTAD models.

Originating as a program of technical assistance for Sport, CS4L now presents itself as a unifying force for recreation-sport alignment and partnership.


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PROMISING PRACTICES:Initiatives to Realign Recreation and Sport



Promising Practices: Initiatives to align Recreation and Sport

This section is about putting good ideas into action, documenting how this is done, and sharing the learning with others. Highlighted are six initiatives taken at the local community level, long a domain of experimentation and innovation. Each is an example of progressive leadership and bridge building, and each addresses one or more issues and obstacles working against the alignment of recreation and sport. Not all of these initiatives were directly in$uenced by the CS4L framework -- some in fact predate its development – but each is very much compatible with CS4L values and principles, and helps to establish the conditions whereby CS4L can further progress and develop.

These initiatives are highlighted for two reasons: First, as examples for every local community to consider and to adapt to their local circumstances. The locally-driven nature of recreation, which makes it responsive to community demands and preferences, also makes it subject to speci#c political realities, uneven availability of resources, as well as unique situational advantages. The examples documented below are presented with the perspective that, while there is no one-size-#ts-all approach to partnering, every municipality can #nd something in these examples worth emulating.

The second reason for presenting these initiatives is to encourage further innovations towards linking Recreation and Sport, using CS4L as a common touchstone, and to promote sharing of outcomes with others who are dealing with similar opportunities and challenges. Updates on new initiatives can be found (and added) on-line at www.canadiansportforlife.ca.

Practice 1: Integrated Sport and Recreation Strategies Taking the initiative: Strategic Bridge-building

If the requirements or possible contributions of all stakeholders are considered when facilities are built and programs provided, the result is an optimal use of precious resources and enormous gain in e!ciency. Joint planning breaks down the “silo mentality” which too often keeps the Recreation and Sport sectors apart and impedes relations with other agencies with overlapping interests and programming, such as educational institutions (schools, colleges, and universities), Provincial/Territorial and National Sport centres, and commercial #tness and sport operators.

Case Examples:Many Canadian municipalities have developed, or are in the process of developing, sport strategies in accordance with CS4L principles. Some of these strategies are speci#c to the needs and priorities of sport in their particular local context. Others integrate both sport and recreation objectives, and engage other key stakeholders in their communities, including economic development o!ces, public health agencies, and private sport facility operators.

If the requirements or possible contributions of all stakeholders are considered when facilities are built and programs provided, the result is an optimal use of precious resources and enormous gain in e!ciency.


The Vancouver Sport Strategy (VSS), approved in May 2008 by Vancouver City Council, consciously builds upon the Canadian Sport Policy, the Province of British Columbia’s Policy on Sport and Physical Activity, and the adoption of the Active Cities Agenda by the Big City Mayor’s Caucus of the Federation of Canadian Municipalities (FCM). The strategy spans the period 2008-2015 in order to support planning well beyond the immediate priorities associated with the City’s hosting of the 2010 Olympic and Paralympic Winter Games. Recognizing that in Vancouver, as in most municipalities, recreation and sport are delivered by many providers, the perspective of the VSS encompasses the roles of Park Board, School Board, colleges and universities, and private and nonpro#t sport organizations in the city.

The VSS addresses the need for system alignment, physical activity for all, improved infrastructure and the positive economic, sport and community building aspects of event hosting through its six Strategic Goals:

1. Strengthened Interaction - A coordinated approach is taken to sport development in Vancouver, with all stakeholders committed to partner-based leadership, e"ective connectivity, and open communication.

2. Physical Literacy for All - All children, from all segments of Vancouver, possess movement, sport and decision-making skills to enjoy sport and physical activity for life.

3. Active for Life - All Vancouver citizens, regardless of age, ability, physical capabilities, economic status, gender, culture, language and location are aware, connected and able to access the places and conditions that support structured and unstructured sport activity.

4. Enhanced Excellence - The Vancouver sport community is integrated and sustains a pool of athletes, coaches, o!cials, clubs and training centres systematically achieving results at provincial, national and international competition through fair and ethical means.

5. Quality Facilities - A diverse range of accessible and welcoming facilities encourage all Vancouver residents to pursue sport at any level of the Canadian Sport for Life Model: Physical Literacy, Excellence and Active for Life.

6. Premier Event Destination - Vancouver is recognized for strategically hosting events of all types which support tourism, economic and sport development, while leaving social and community legacies.

“Strengthened Interaction” sets out as its #rst objective the formation of a Community Sport Council, called the Vancouver Sport Network (Van SportNet), to steward, with #nancial and sta" support from the City, the implementation of the Strategy. Vancouver SportNet was launched in 2009 and has since organized action groups focused on each of the above goals, as well as clusters of sports with common interests (e.g., aquatics, arena and #eld sports).

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...a coordinated partnership and integrated strategy addressing all recreation, sport and physical activity is the best way to achieve optimal community bene"t with available resources.

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Key learning:The awarding of the 2010 Olympic Winter Games was strong motivation for Vancouver to make itself a leading sport and physical activity city, but the conditions for doing so predate the bid for the Games. The City has long been aware that improving the life-style of citizens brings health, social and economic bene#ts to Vancouver as a whole and to its component communities. What is new is the understanding that a coordinated partnership and integrated strategy addressing all recreation, sport and physical activity is the best way to achieve optimal community bene#t with available resources.

Practice 2: Community Sport Councils Taking the initiative: Building cohesion amongst local sports organizationsLocal sport organizations, struggling with a limited volunteer base and/or lack of succession planning to replace volunteers, often have a diminished capacity to look beyond the immediate needs of their sport. They may be reluctant to share resources and good practices with “rival” organizations and thus unnecessary duplications are perpetuated, adding to the overall volunteer burden. Furthermore, municipal recreation departments may #nd themselves catering to the largest and best organized sports, overlooking those with severe capacity challenges.

Case Examples:Community Sport Councils (CSCs) are autonomous organizations composed of representatives of local sport organizations acting for the development and enhancement of sport within a community. Not an entirely new phenomenon, they are an evolved form of the “recreation committees” or citizen advisory boards convened by the municipality to assist in recreation decision-making. As is the case with recreation, CSCs are locally-driven and have diverse mandates, but generally they are oriented towards the following objectives:

!" Providing leadership at a municipal level and interacting with local authorities and potential sponsors as a uni#ed “Voice for Sport;”

!" Coordinating use of public facilities, registration, services, and standards;

!" Sharing information and enabling members to learn best practices from each other;

!" Pressing for capital improvements to public sport infrastructure and helping to secure funding for this purpose;

!" Promoting and assisting sport-related special events in the local area (e.g., Provincial and Regional Games and championships) and supporting sport event bids either independently or as part of a cooperative/partnership

!" Developing sport tourism, volunteer development and coaching programs.

!" Providing a one-stop resource for information on all community sport and linking the new sport participant to the sport of their choice;

!" Assisting sport organizations and individuals by linking them to, or providing them with, sport related education and support services, and providing bene#ts to members, such as volunteer organization involvement, research and information sharing, and media awareness.


Community Sport Councils are well-established in many municipalities throughout Ontario, Alberta and British Columbia; in other provinces, such as Saskatchewan, councils have been formed on a regional basis. While some have mobilized locally and spontaneously, others have been enabled by province-wide initiatives. For example, the Sport Alliance of Ontario used a $500,000 Trillium Foundation grant received in 2001 to assist nearly #fty communities either to investigate or actively undertake CSC formation. Eighteen of these new CSCs (in addition to the #ve previously in existence) remain viable today, even though grant funding for ongoing implementation ended in 2005. A similar project in British Columbia was supported by 2010 Legacies Now, resulting in the number of CSCs growing from seven to twenty-one in development or formed by 2009. Investment by the City of Edmonton in sport development and capacity-building led to the formation of the Edmonton Sport Council (ESC). Incorporated in 1997 with the mandate is to advocate on behalf of sport and to enhance sport experience in that city, the ESC is now one of the leading Community Sport Councils in Canada. The ESC provides sport organizations and individuals with access to sport related education and support services and facilitates e"ective communication among Edmonton sport organizations and between these sport organizations and other stakeholders, including all levels of government.

Key learning:A common theme in the growth of viable CSCs is the enabling role of municipal recreation as a key partner. In some cases, municipalities provide operating grants, seconded sta", or in-kind services such as o!ce space to nascent CSCs. As provincially-based sustaining funding for CSCs is generally not available, the support from municipal recreation is essential. Even more important is the working relationship itself: to build mutual respect the recreation department must include the CSC in decision-making, assign important tasks such as coordinating facility need studies, or collaborate on integrated sport/recreation registration systems. Without a working partnership and meaningful tasks to carry out, the CSC can wither even in communities where the municipality provides direct support.

With a CSC in place, municipal recreation bene#ts by having a single point of contact and partner for decision-making, a stronger capacity to facilitate local sport programming, a framework for joint event hosting, and the possibility to improve e!ciency through joint initiatives such as central program registration.

With a CSC in place, municipal recreation bene"ts by having a single point of contact and partner for decisionmaking, a stronger capacity to facilitate local sport programming, a framework for joint event hosting, and the possibility to improve e!ciency through joint initiatives...



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Practice 3: Joint-use Facility Agreements and Innovative Facility Partnerships Taking the initiative: Renewing and Getting Good Value from Recreation and Sport Infrastructure

The infrastructure de#cit a"ecting sport and recreation facilities has several dimensions. Many such facilities are ageing and in poor condition; this is particularly true of pools and arenas which, due to the humidity and chemical processes inherent in their operation, wear out much faster than other kinds of buildings. In many cases the problem is exacerbated by poor maintenance standards or inadequate operating budgets. Even when the facilities are well maintained, however, functional obsolescence can be a factor; often older facilities no longer meet contemporary standards and requirements for training and competition, which in most sports tend to become more rigorous over time. Finally, the provision of space for sport and recreation has not kept pace with population growth, much less having su!cient capacity for higher rates of participation through longer spans of active living.

Inadequate provision for the reasons outlined above, coupled with the specialized and sophisticated demands of sports beyond the most basic levels, results in Sport often having to scramble for places to train and compete. Various strategies have been employed to realize the full capacity of existing facilities, or to develop new facilities designed to meet the full range of requirements of a given sport or set of sports.

Case examples:Some communities have bene#ted from formal agreements involving local authorities, school boards, community sport organizations or private companies to build new spaces or expand access to existing recreation facilities. For example the City of Edmonton has entered into a Joint Use Agreement with the three major school boards active in its jurisdiction (Edmonton Public Schools, Edmonton Catholic Schools, and Edmonton Francophone Schools) addressing the planning, building and maintaining of schools and parks. The Agreement provides the City and community organizations with access to school facilities such as gymnasiums, ancillary space and classrooms for league sports, and for instructional and casual sports and recreation activities. At the same time the Agreement provides schools with access to City arenas, aquatic facilities, and tennis courts for curriculum activity, interschool events, and alternative sport programs run by the school districts.

Many communities lack facilities, or the means to upgrade or repair existing facilities. Here, rather than joint-use agreements for sharing facilities; funding for construction or renovation is needed. A 2006 Report1 to the Federal-Provincial/Territorial Sport Committee (FPTSC) identi#ed #fteen examples of good practice

1 dmA Planning & Management Service (2006) Innovative Sources of Funding for Development and Rehabilitation of Sport & Recreation Infrastructure


for funding and building sport and recreation infrastructure, several involving innovative design and energy management as means of generating partnerships or grants to facilitate construction. The majority are projects which were enabled by multi-partner agreements. For example:

!" Cygnus Gymnastics Club of St John’s Newfoundland and Millennium Sports Centre in Vancouver BC were developed through long-term cooperative ventures of sport clubs with municipalities, taking advantage of opportunities arising once the partnership was established and the parties were ready to proceed. The Cygnus Gymnastics Club was the bene#ciary of an agreement negotiated between the City and a grocery retailer to construct a new store in a repurposed and renovated civic facility, with dedicated space in the mezzanine for the club. In the case of Millennium, a shared use facility for gymnastics and indoor lawn bowls was #nanced through 20-year loans secured by the two sport clubs, augmented by City capital funding and a Canada British Columbia Infrastructure Program grant.

!" Complexe sportif Les Estacades in Trois Rivieres was the result of entrepreneurialism by two community sport leaders, combined with a multi-partner agreement between the municipality, school board and a school foundation. A Federal Provincial Infrastructure grant provided 2/3 of the capital cost, and the 1/3 municipal share was realized by the school board donating land for the complex and securing a $1.8 M loan, with responsibility for repayment shared in equal thirds by the board, school foundation and the City. Operational responsibility for the complex was assigned to the school foundation, enabling it to pay down its $600,000 share from operating revenues over the life of the agreement.

!" The Vaughan Soccer Center is the home of the Ontario Soccer Association (OSA) and includes a full-sized indoor #eld as well as adjacent outdoor #elds. The Centre is owned and operated by a wholly-owned subsidiary of the Ontario Soccer Association, and was built through a partnership between OSA and City of Vaughan. $10.8 M was needed to build the Centre: Vaughan contributed $1.8 million and guaranteed $5 million of a $7 million loan secured by OSA for the project. OSA contributed $500,000 from cash reserves and raised the balance of $1.5 M through a $2 per player special levy on its members. Vaughan also provided the land, for which OSA pays $1 per year on a 44-year lease. Vaughan waives property tax and provides site services at no charge.


Key Learning: In municipalities where public sport facilities are owned and operated by di"erent authorities (e.g., Parks and Recreation, School Boards, Colleges, etc), a global joint-use agreement such as has been developed in Edmonton can greatly enhance access to these resources.

In places where there is unmet facility demand, either as to type or quantity, multi-lateral partnerships can help #ll the gap. The facility development strategies described above are each unique and complex, but there are several common denominators: (1) the willingness of the municipality to cooperate with other agencies to make a project happen; (2) the readiness of the sport organizations to take on risk and in some cases signi#cant debt; (3) the resulting facilities are owned and/or operated by the sport organizations (or related foundation) which provide for high-performance training and competition alongside community use.

There has also been a growing awareness at the senior government level of the ageing state of much of Canada’s leisure infrastructure, and the high costs of building new or renovating existing infrastructure. Funding of Canada’s sport and recreation infrastructure was the number one priority in the Federal-Provincial/Territorial (FPT) Ministers’ 2002-2005 Action Plan. The subsequent launch of the Recreation Infrastructure Canada (RInC) program in 2008 has provided the means for many municipalities to leverage local investment into large scale facility renewal projects.

Practice 4: Fair and Equitable Facility Allocation Taking the initiative: Allocating Facility Space based upon “Standards of Play”

How to allocate municipal facility space is an issue across Canada. Many municipalities simply perpetuate existing bookings without consideration of equity or quality outcomes. This practice leaves new sport organizations or new sports with little or extremely poor practice and playing time.

Although there has been a trend towards third-party operation of public facilities, especially arenas, more commonly municipal recreation departments retain control, giving priority to mass participation programming at basic skill levels. Space for higher levels of organized sport is allocated on a rental basis and frequently after-hours when the facility is closed to mainstream use. This practice generates the perception – if not the reality – of a landlord-tenant relationship between recreation administrations and sport practitioners.

Case Examples:Parallel with the work of the ESC, the City of Edmonton has empowered the sport community through the creation of facility user committees. The general purpose of the facility user committees is to advise the City on all matters that impact the operations of civic arenas, sport #elds, gymnasiums and aquatic facilities and to ensure that allocation for community use of sport facilities (arenas, #elds, aquatic facilities and gymnasiums – including those of the three major school boards) is within the terms of the fair and equitable allocation process. Allocation of facility space under this process is based on “Standards of Play”, an allocation model which determines each group’s entitlement in relation to total demand for a

In municipalities where public sport facilities are owned and operated by di#erent authorities, a global joint-use agreement... can greatly enhance access to these resources.

In places where there is unmet facility demand... multi-lateral partnerships can help "ll the gap.


on the hours per team required (for both games and practices). The standard for individual sports is based on facility hours per individual divided by the number of individuals utilizing the facility at one time. Each level of a sport or activity can have its own standard, such that, for example, the standard for junior hockey is di"erent than that for novice hockey.

Key learning:Fair and equitable allocation of space within public recreation facilities is an ongoing challenge, since increased access for one set of users means reduced access for another. Involving the end users in allocation decisions, and basing the process on sport speci#c LTAD models and the number of sport participants within each CS4L stage, has proven to be a successful approach in the Edmonton context.

given type of facility. A group’s entitlement is then a percentage of total capacity as demand $uctuates in relation to available facility supply.

The standard of play for a sport or activity answers the question: “How much facility time does this sport/activity need to be a good program for the residents of Edmonton?” The standard of play for a speci#c sport or activity is broken down into various levels within each activity. In team sport, the standard is based

Involving the end users in allocation decisions, and basing the process on sport speci"c LTAD models and the number of sport participants within each CS4L stage, has proven to be a successful approach...

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Practice 5: Resources for Recreation/Sport Integration Taking the initiative: Toolkits for building e!ective partnerships

Partnership-building can be di!cult. Individual municipal recreation departments may need assistance to build an e"ective sport network in their communities. A provincial/territorial or national partner has the pro#le and the perspective to build a framework and provide capacity-building “tools” to facilitate the process.

Case ExampleThe groundwork for the sport and recreation integration initiative began in 2007 when the BC Recreation and Parks Association (BCRPA) committed to forming a Sport and Recreation Integration Task Group with representation from both the sport and recreation sectors to create stronger relationships between community sport groups and municipal recreation departments. The members of this group worked together to develop the following objectives for the project:

!" To understand the current barriers that exist between community sport groups and municipal recreation departments;

!" To create a toolkit of resources to foster connections between sport and recreation, and

!" To develop a plan to disseminate and implement the toolkit. The Integration Project has developed a strategy encompassing twelve initiatives, articulated as follows:

1. Sport Council development2. Co-operative model for program development3. Embrace the LTAD model4. Collaborative development of physical literacy5. Collaborative promotion of local sport6. Uni#ed registration 7. De#nition of partnership principles8. Creation of grassroots networking opportunities9. Collaborative approach to facilities (planning, access, operations)10. Rationalization and allocation of resources11. Integrated risk management12. Integrated instructor/coach training

Acting on the strategy, BCRPA has developed an online collaborative site with supporting materials for each module (including resources, guidelines, samples and templates) in support of the 12 initiatives. The targeted users are primarily those working at a grassroots level, either as front-line recreation programmers or in community sport organizations. The toolkit modules will soon be accessible on-line in an “open access” format, so that they can be updated and added to on an ongoing basis by those working in the #eld.

Key learning: Trust and engagement amongst stakeholders at the community level is built and reinforced by sustained outreach, as well as the “brand-recognition” which comes with a provincially-led initiative. The framework and tool kit modules described above are grounded in the real needs identi#ed by municipal recreation departments, which in turn bene#t from shared access to proven solutions, minimizing duplication of e"ort. This model will soon be available for adaption and use across the country.

Trust and engagement amongst stakeholders at the community level is built and reinforced by sustained outreach, as well as the “brand-recognition” which comes with a provincially-led initiative.


Practice 6: Integrating CS4L into Sport/Recreation training programs Taking the initiative: Ensuring quality professional development of sta! and volunteers

With the support of Provincial/Territorial Recreation organizations and the Canadian Parks and Recreation Association (CPRA) – Recreation has created sta" and volunteer curricula aimed at enhancing the quality of recreation programs. Similarly, PSOs and NSOs have generated training opportunities with similar capacity-building objectives for Sport. A myriad of education programs is therefore on o"er to Sta", practitioners, coach/instructors, and administrators in Recreation and Sport which, to the extent they have been developed in isolation, too often result in duplication of e"ort, completion between programs and insu!cient uptake. Integrated planning increases the e!ciency and e"ectiveness of professional development.

Case Example:HIGH FIVE® is a training program, focused on quality delivery in both recreation and sport settings.

Parks and Recreation Ontario (PRO) began developing HIGH FIVE ® in 1994 in recognition of the impact recreation and sport has on middle childhood. Since then, HIGH FIVE® has become a quality assurance standard for children’s recreation and sport. The HIGH FIVE® vision is that all children aged 6 to 12 experience emotional, social and cognitive healthy development through sustained involvement in quality sport and recreation activities. HIGH FIVE® is committed to achieve this vision by:

!" Ensuring that sport and recreation practitioners develop a high level of knowledge and expertise in positive child development;

!" Helping parents to make informed choices; and

!" Providing practitioners with tools for enhancing and maintaining a high level of program quality.

Coaches who work with children in the 6 to 12 age range are given, through a 4.5 hour course, the expertise and tools to achieve positive experiences for their athletes, including how to:

!" nurture the child’s mental health

!" engage & motivate athletes

!" prepare a child emotionally for competition & manage feelings around winning & losing

!" design competition that promotes Fair Play

!" communicate e"ectively with athletes & their parents and

!" e"ectively manage behaviour.

39

In 2009, HIGH FIVE® was revised to integrate CS4L principles. This important step increased the relevance of the program to community sport coaches and leaders who are increasingly encountering CS4L program modules as they are developed and passed down from National and Provincial/Territorial Sport Organizations to local clubs. The new HIGH FIVE® Sport is an excellent example of system alignment in action. The relationship with CS4L was captured by HIGH FIVE® National Manager L. J. Bartle: “CS4L is what children need to learn. HIGH FIVE® is how they need to learn.”

Key Learning:HIGH FIVE® quickly achieved success within recreation services as a quality-improvement program but acceptance was slower amongst community sport volunteers, who are expected to take many such training events and need to be convinced that the cost and time involved is worth it. For this reason, HIGH FIVE® was modi#ed to use the language of CS4L, which is rapidly becoming a standard in sport and which perfectly #ts the HIGH FIVE® philosophy. The result is a Sport-friendly program which enables recreation administrations to meet goals for quality service.

Documenting Other Promising Practices and Initiatives

The promising practices discussed above show that a convergence between Recreation and Sport is beginning to happen. But the landscape upon which these changes are occurring is in continuous $ux. All the case examples are works in progress, and many other programs and initiatives are getting underway which re$ect similar thinking on system alignment and partnership. Here are some areas where actions which deserve further attention and documentation are taking place:

!" Joint advocacy: Sport Matters, a national multi-sport organization, works with the Federation of Canadian Municipalities to support the Active Cities Agenda. Similar alliances exist or are in formation at the provincial/territorial level

!" “Sport Specialists”: The City of Edmonton employs Sport Consultants which provide capacity-building support services to a variety of qualifying sport organizations.

!" Inclusion of vulnerable populations: Many outreach programs engage inner-city youth, recent immigrant, aboriginal and other vulnerable populations in organized sport. Some examples are:

!" BC Soccer Association’s Kickin’ - Soccer in School Program; !" Toronto Parks, Recreation and Forestry programming

for new Canadian Youth.!" Non-traditional approaches to sport. Drop-in youth programs such

as Street Games, Evening drop-in Basketball combine recreational sport with other social inclusion activities and youth counseling. Some examples of this approach are MoreSport and YELL in Vancouver. Sport event hosting and promotion: The Calgary Sport Council sponsors an annual “All Sport One Day” event to introduce children aged 6-12 years to a range of di"erent sports at various Recreation facilities around the city.

To #nd out current information on initiatives such as those above or, equally importantly, to document other instances of Recreation and Sport working collaboratively, register on-line at www.canadiansportforlife.ca.

“CS4L is what children need to learn. HIGH FIVE® is how they need to learn.”


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A ROADMAP TO THE FUTURE



A Road Map to the Future

This section provides detailed guidance on how municipal recreation can contribute towards an aligned, integrated physical activity delivery system for all Canadians. The section is divided into two parts: The #rst part is organized around the seven distinct stages of human physical development that are fundamental to CS4L theory and practice; it provides a checklist of relevant actions for municipal recreation sta" to work on in partnership with key stakeholders to support optimum development at each stage. The second part is a set of recommendations aimed at creating the conditions for Sport/Recreation integration, addressing the speci#cs of participants with a disability, facility planning, facility allocation, program development and program inclusivity.

“MUNICIPAL GOVERNMENTS ARE CLOSEST TO THE PEOPLE; THEY ARE LIKELY TO RESPOND MORE FLEXIBLY, MORE QUICKLYAND MORE EFFECTIVELY TO THE NEEDS OF THE COMMUNITY IN MATTERS OF RECREATION.”

NATIONAL RECREATION STATEMENT, INTERPROVINCIAL SPORT AND RECREATION COUNCIL, 1987


Part One: Sport for Life A stage by stage guide for municipal practitioners

PHYSICAL LITERACY

Physical literacy, a well-rounded competence in basic movement and basic sport skills, is developed from birth through to puberty. This is the critical period of individual growth where the foundation for later participation is laid, either in pursuing enhanced excellence or remaining active for life.Physical literacy divides into three developmental stages, each requiring its distinct set of programming approaches and facility needs:

Active Start (AS): Birth to +/-6 years

“From ages 0-6 years, children need to be introduced to relatively unstructured play that incorporates a variety of body movements. An early active start enhances development of brain function, coordination, social skills, gross motor skills, emotions, leadership, and imagination. It also promotes healthy weight, reduces stress, improves sleep, and helps children attain con#dence, develop posture and balance, build strong bones and muscles, and learn to move skillfully and enjoy being active” [Canadian Sport Centres (2007) Sport Parent’s Guide, p 14].

FUNdamentals (FUN): +/-Ages 6-8 for Girls, 6-9 for Boys

The FUNdamentals are basic movement and sport skills taught through fun games and activities that engage small children and motivate them to continue in activity. While these basics are fun in nature, they also serve another purpose: they teach the essential skills required as a foundation for more complex physical activities and sports. It is important that all children develop a good base of these skills before puberty to optimize both future performance and lifelong activity. This basic set of FUNdamental movement (dance) and sports skills [is the second stage of ] “physical literacy” and it includes things such as skipping, hopping, jumping, throwing, catching, hitting, and swimming.1

Learning to Train (L2T): +/-Ages 8-11 Girls, 9-12 Boys

“From ages 8-11 in girls and 9-12 in boys, to the onset of the growth spurt (usually around the ages of 11-12), children are ready to begin training according to more formalized methods, but the emphasis should still be on general sports skills suitable to a number of activities. While it is often tempting to over-develop “talent” at this age through excessive single sport training and competition (as well as early positioning in team sports), this can be very detrimental to later stages of development …(as) it promotes one-sided physical, technical, and tactical development and increases the likelihood of injury and burnout” [Sport Parent’s Guide, p 15].

Physical literacy, a well-rounded competence in basic movement and basic sport skills, is developed from birth through to puberty. This is the critical period of individual growth where the foundation for later participation is laid, either in pursuing enhanced excellence or remaining active for life.

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Girls 8-11, Boys 9-12Learn to Train

LTA

D S

tag

e

Who?Where?

Girls and Boys 0-6Active Start

Schools

Sport programs

Sport clubs

Home

Parents/Guardians

TeachersRecreation leaders

Coaches

Youth leaders

Girls 6-8, Boys 6-9FUNdamental

Schools

Community recreationSport programs

Sport clubs

Home

Parents/Guardians

TeachersRecreation leaders

Coaches

Youth leaders

Home

Day careSport programs

Pre-schools

Community recreation

Parents/Guardians

Pre-school teachersKindergarten teachers

Day care providers

Physical Literacy

Community recreation


MUNICIPAL RECREATION AND PHYSICAL LITERACY

Municipal recreation services are well placed to deliver quality physical literacy programming, either directly or in collaboration with school boards, childcare providers and community sport groups. The table below outlines what can be achieved by Recreation taking a strong leadership role for physical literacy outcomes.

Physical Literacy Stage Key Result Area

AS FUN L2T PROGRAMS

Community centres o"er a range of age-appropriate multi skills sport programs.

Parents, pre-schools, daycares and other guardians are encouraged at recreation facilities to allocate one hour per day to physical activity and skill development for children aged 0-6.

Community recreation programs target the development of clusters of sport skills – for example, aquatic skills, ball skills, court game skills, or sliding skills, rather than sport speci#c skills – and allocate a high priority to such programs in the scheduling or rental of facilities.

Fundamental movement skills programs, with warm-up and cool-down activities, are developed and implemented in partnership with community-based stakeholders.

In partnership with schools and other stakeholders, after-school sport programs are developed and expanded with a focus on the development of fundamental movement skills. Programming of this type in Quebec quebecenforme.org provides a possible model to emulate.

Sport-speci#c “learn to play” and “development” programs for athletes of all abilities are developed in partnership with minor sport organizations.

Developmentally appropriate quality programs are supported by reduced fees, higher priority in facility rental, and better access to facilities and equipment to sport organizations that implement programs in-line with their national sport association’s LTAD plan and use NCCP quali#ed coaches in their programs.

A variety of special events are integrated into Active Start programs.

Community centres, schools and community sport organizations co-sponsor age-appropriate multi and single sport “try it out” days, and host sport festivals on such themes as “Canada Games Days” and ‘SportFit Testing’. The scheduling and delivery of such programs is made a high priority in sta" work-plans and facility rental.

Regular single-sport festivals are developed, promoted and implemented in a wide range of indoor/outdoor individual and team sports, timed to take advantage of major national or international events. For example, a tennis festival is held during Wimbledon or a soccer festival after the FIFA World Cup.

Activities such as “Street football” and “Street games” are organized in areas with limited open space suitable for sport.

AS FUN L2T EVENTS

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AS FUN L2T ACCESS

Municipal swim-pass programs for children are expanded to include public transportation passes for low-income participants.

A “Recreation Access” program provides free admission and public transportation to and from facilities for children from low income families.

“Introduction to Sport” programs are designed or expanded to increase the number of participants from low-income areas of the municipality.

Organized sport groups are assisted by the public school and recreation systems to strategically deliver sport to vulnerable populations: e.g., children from economically challenged families, Aboriginal young people, new Canadians, children with a disability and young people for whom English is a second language.

Community recreation facilities are designed and equipped so that children can explore climbing, jumping, swinging and other whole-body activities. In addition, facilities are supplied with adequate equipment of the size and type required by children to explore movement opportunities (e.g., large and small brightly coloured balls, bats, hoops, skittles, bean-bags etc.).

Community recreation facilities have adequate equipment of a size and type suitable for children in the FUNdamentals and Learning to Train stages (for example, size 3 & 4 soccer balls, lower basketball hoops); #eld/court markings are likewise scaled proportionately.

Community sport organizations are involved in space allocation decisions for physical literacy programming.

Allocation priority is based on sport speci#c LTAD models, with the City of Edmonton’s Standards of Play (see Promising Practice 4, above) as a possible approach to emulate.

Community Recreation program leaders and volunteers are trained in (a) child safety and protection and the prevention of abuse, bullying and harassment and (b) fundamental sport skill development through modules that combine empowering messaging with risk and liability education such as: Respect in Sport on-line training, MARS and HIGH FIVE.

Training programs are developed and implemented for Recreation Sta" in community centres, hub schools and other community facilities enabling them to design and deliver fundamental movement skills programs. A model of such programs is the Coaching Association of Canada’s fundamental movement skill development module.

Preschool and daycare facilities and programs in municipally-owned facilities are recognized for meeting voluntary standards of (a) time allocation, (b) equipment availability and (c) leader quali#cations in the area of physical activity and skill development.

Quality developmental sport programs and organizations are recognized through a “True Sport Club Excellence” type program (For more information, see truesportsecretariat.ca).

AS FUN L2T FACILITIES

AS FUN L2T SPACE ALLOCATION

AS FUN L2T STAFF AND VOLUNTEER TRAINING

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ENHANCING EXCELLENCE

Upon completion of the Physical literacy stage, some individuals will elect to transition to advanced level training in a speci#c sport and progressively more advanced competition, with the ultimate goal of podium #nishes. Optimally, this pursuit of enhanced excellence is supported by an integrated sport community, sustaining a pool of athletes, coaches, o!cials, clubs and training centres, and systematically achieving results at provincial, national and international competition through fair and ethical means.

Enhancing Excellence also divides into three developmental stages, each again requiring its distinct set of programming approaches and facility needs: Training to Train (T2T): +/-12 – 16 yearsAt the Training to Train stage athletes enter training environments such as sport academies, regional or provincial teams; coaches have NCCP Competition Introduction and Competition Development certi#cation; o!cials are certi#ed provincially; and competition is at Provincial/Territorial games.

Training to Compete (T2C): +/-15 – 21 years

For the Training to Compete stage athletes are in training environments such as sport academies, junior national or development teams; full-time coaches are certi#ed with NCCP Comp Dev or NCI diplomas; o!cials have national certi#cation; and competition is at Canada Games or the international junior level.

Training to Win (T2W): 18 years +

The Training to Win stage is characterized by athletes in training environments such as national senior team; full-time coaches certi#ed with NCCP Comp High Performance or NCI diploma; o!cials with international certi#cation; and competition for the podium at Professional Leagues, World Cups, World Championships or Olympics.

...pursuit of enhanced excellence is supported by an integrated sport community, sustaining a pool of athletes, coaches, o!cials, clubs and training centres, and systematically achieving results at provincial, national and international competition through fair and ethical means.


MUNICIPALITIES AND ENHANCING EXCELLENCE

The role of Recreation also transitions at the Enhancing Excellence stage, with the municipality becoming less a direct provider of programming and acting more in an enabling capacity, in cooperation with existing Centres of Excellence and/or the Canadian Sport Centre serving the athletes in the community. Although, as noted above, Recreation has not traditionally regarded enhancing excellence as part of its core mandate, it is important to realize that bene#ts $ow both ways when Recreation engages with advanced level Sport. The table below outlines what should be undertaken and can be achieved.


T2T T2C T2W ATHLETE TRAINING

Municipal recreation, in partnership with community sport organizations initiate programs in which coaches and athletes contribute their expertise to the development of younger athletes in the community at demonstrations during special events, Sport Academies and community based programs.

Training and competition environments are developed in partnership with Canadian Sport Centres and other stakehold-ers to help athletes achieve international or professional success.

Enhanced #tness opportunities are provided to high performance athletes: e.g., “carded” athletes are admitted to municipal #tness centres at low or no cost. This initiative would bene#t not only the athlete but also draw other users to the facility and enhance their training experience.

Athletes in the excellence pathway are supported through grassroots ‘adopt a local athlete’ initiatives.

Space for certi#cation and professional development of Coaches and O!cials is provided at no cost in Recreation facilities.

An “Athletes in the Community” grant program provides opportunities for athletes to engage in and inspire other participants in local Active Communities programs and events.

City hiring policies and practices give preference to athletes in, for example, summer leadership positions.

Resources are directed to the development, training and ongoing support of sport coaches.

The development of multi-sport clubs is encouraged (such clubs are a generally accepted model in Europe).

Training and competition facilities within the municipality have adequate equipment of the size and type required for optimal development by athletes.

World class training and competition facilities for sports are developed (or renovated) on a regional basis through partnerships of municipalities with other stakeholders, such as local colleges and universities.

The municipality works in conjunction with other public sector authorities, and with the academic and private sectors to ensure optimum utilization of the collective inventory of sport facilities and equipment.

! ! !

T2T T2C T2W DEVELOPMENTAL ASSISTANCE

T2T T2C T2W FACILITIES

T2T T2C T2W ACCESS

Preferential access to facilities and equipment at reduced cost are given to sport organizations whose programs conform to their national sport association’s LTAD plan, and who use NCCP quali#ed coaches in their programs.

Di"erent clubs in the same sports are encouraged to work together through mechanisms such as funding, fee o"sets or preferential access. Swim Clubs, for example, would thus be motivated to coordinate training with each other rather than competing for pool usage.

National and provincial training centres programs are supported through reduced facility rental fees, high priority for access and for equipment rental and other mechanisms.

Incentives such as fee reductions, preferential facility and equipment access encourage quality, developmentally appropriate programming for Training to Win athletes.

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53

ACTIVE FOR LIFE

Given a solid foundation of physical literacy all individuals will have the necessary motor skills and con#dence to remain active for life. Most will progress naturally in their early teens to enjoy playing a sport or set of sports, and engaging in physical activity generally, will retain that lifestyle through their entire lifespan. Excellence path athletes will also make this transition upon their exit from the competition stream in their primary sport. They may decide to continue playing their sport at the recreational level, try new sports and activities, become a game o!cial or coach, move to sport-related careers or volunteer as coaches, o!cials, or administrators.

Active for Life requires opportunities for people to engage in the sport or sports of choice, throughout their life, at the level of commitment they desire, in an environment that is welcoming and supportive.

MUNICIPALITIES AND ACTIVE FOR LIFE

Active for life type programming has traditionally been the primary focus of Recreation, and would remain so through an evolving partnership with Sport. Mainstream populations are served very well by existing municipal facilities and programs. The challenge is, and remains, to ensure that all persons, regardless of age, ability, physical capability, economic status, gender, culture, language and location, are aware, connected and able to access the places and conditions that support structured and unstructured sport activity. Achieving this goal demands special attention to the needs of more marginalized groups, as summarized below:

All Ages

�" A public awareness program creates the conditions in which youth, young adults, adults, seniors and under-represented ethnic and cultural groups all participate and are welcomed into recreational sport activities.

�" Facility scheduling accommodates single-sex, absolute-beginner, under- or over-weight, and/or age-speci#c use of di"erent areas of (or times in) recreation facilities, to reduce participants’ feelings of “being on display”.

�" Recreation facilities users can socialize before and after participation in designated areas which are secure supervised, comfortable and aesthetically pleasing.

�" New community facilities are constructed and existing facilities re-furbished to create multi-use, recon#gurable spaces for both sport and social activities as described in the preceding two bullets.

�" Recreation sta" work in consultation with ethnic community groups to help design, develop and deliver relevant sport programs such as Kabaddi and Wushu and include culturally appropriate physically active sport opportunities in ethnic celebrations and festivals.

Given a solid foundation of physical literacy all individuals will have the necessary motor skills and con"dence to remain active for life... Active for Life requires opportunities for people to engage in the sport or sports of choice, throughout their life, at the level of commitment they desire, in an environment that is welcoming and supportive.


�" Events (Street Games festivals, 3-on-3 Basketball extravaganzas, #ve-a-side soccer) are designed speci#cally for areas of the City with limited sport facilities and /or marginalized participants.

�" Policies, programs and service for persons with a disability are integrated into every aspect of sport delivery by all stakeholders.

�" Recreation makes use of mobile and Internet technologies to enable participants to select activities, make bookings and connect with one another.

Youth

�" Community recreation centres and partner organizations expand the range of recreational sport programs to engage a larger number of youth participants through:

!" Non-traditional approaches to sport. Drop-in youth programs such as Street Games, Evening drop-in Basketball combining recreational sport with other social inclusion activities and youth counseling.

!" Newly emerging and high-sensation sports such as Ultimate, BMX, and skateboarding,

!" Identi#cation, training and utilization of youth with leadership potential (e.g., “Youth leading Youth”) and, for older youth, youth employment.

�" Partner with other sectors such as Justice or Police Services to positively engage with youth. For example, citations given for ‘good behaviour’ provide access to sport facilities and programs as a reward.

Young Adults

�" Programs for young adults, o"er choice of a variety of activities and focus on casual engagement, not demanding commitment to any one activity for an extended period of time.

�" Programs for women combine recreational sport in tandem with available infant /child-care and opportunities for social networking and parenting education.

�" “Learn to” sport programs are tailored to the needs of under-represented segments of the population including visible minorities and the habitually-inactive.

Older Adults/Seniors

�" Older adults and seniors are involved in the planning and delivery of programs targeting their participation.

�" Indoor and outdoor recreational sport opportunities are provided in proximity and cooperation with seniors’ residential complexes.

�" Volunteer programs, including appropriate training, draw on the experience and abilities of older adults and seniors as sport leaders and coaches.

�" Fitness facilities and programs respond with appropriate equipment and knowledgeable sta" to the needs of older participants.

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57

Part Two: Getting StartedRecommendations to Initiate Sport/Recreation Integration

General Recommendations

These recommendations are “general” in that they require municipalities to act in concert with other local authorities (including school boards); NSOs and P/TSOs; national and provincial/territorial recreation associations; and community-based sport, recreation and childcare organizations.

1. Develop a municipal sport/recreation strategy based on CS4L principles, or revise an existing sport strategy accordingly: Development of a such a strategy is a critical #rst step towards the establishment of policies and partnerships outlined in the recommendations below.

2. Make use of common Canadian Sport for Life (CS4L) terminology: The use of CS4L terminology within the sport sector has created a common, unifying language. Terms like “Physical Literacy” and stage descriptors such as “FUNdamentals” and “Active for Life” have become entrenched, leading to a common understanding amongst di"erent sports. The same can occur between Sport and Recreation, and ultimately between these two sectors and those of education, childcare and health, as the basis for clarifying respective roles and creating a framework for cooperation.

3. Strengthen the National-Provincial/Territorial-Municipal policy continuum: Continue to build joint advocacy, through programs such as Sport Matters or through Federation of Canadian Municipalities connections. Facilitate linkages with and between local youth, immigrant, aboriginal and other issue-focused organizations in connection with the expanding CS4L network. Initiate joint Recreation-School District policy roundtables at the Provincial/Territorial and National levels to coordinate action on physical activity issues.

4. Create a uni#ed “Canadian quality delivery standard”: Both the recreation and sport sectors agree on the need for quality program delivery, but lack a uni#ed standard. CS4L and programs such as the National Coaching Certi#cation Program, HIGH FIVE, True Sport, Club Excellence and others help to shape quality programs. Now it is time to create a shared standard and to provide incentives for community-level programs which meet or exceed that standard. Targeted support to sport clubs that o"er quality programs will encourage volunteer development, enhance participant satisfaction, reduce drop-out and better manage risk. A “trust mark” approach – e"ectively the creation of a widely recognized brand – could be used to recognize organizations and programs which adopt and adhere to the standard. Speci#c incentives such as preferred access to facilities, subsidies, or other bene#ts, could then be evolved for organizations and programs awarded the trust mark.


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5. Support existing Community Sport Councils (CSCs) and facilitate the development of new partnerships on this model: A CSC is a highly e"ective forum to achieve the following objectives: !" Develop a comprehensive Sport/Recreation strategy for the local

community;!" Introduce and provide municipal support for education programs,

such as NCCP and HIGH FIVE to help the entire community meet the quality standard.

!" Formulate a facility access policy with incentives for quality sport delivery.

!" Take action on other issues such as facility planning, social issues, sport tourism which require partnership for solution.

Identi#cation of priority concerns at the community level is a good way to start the development of a CSC; a “touch point” such as lack of access to facilities can be leveraged to bring all potential partners to the table. As noted in the “Promising Practices” chapter of this study, the sequence and strategies used to build a new CSC, with associated learning, should be documented and shared as part of an emerging community of practice across the country.

6. Adaption of the CS4L model to the needs of smaller jurisdictions: Many promising practice and initiatives are occurring in big city settings where there is a robust diversity of facilities, programming and other resources. The situation is signi#cantly di"erent in the many small towns and rural communities across Canada. An adapted model of CS4L implementation needs to be developed, tested and circulated amongst smaller jurisdictions.

Municipal Sector Recommendations

The following recommendations are speci#cally addressed to municipal level authorities as the lead providers of recreation and sport infrastructure across the country. While the recommended actions may be initiated unilaterally, the assumption is that implementation will also take place in a context of expanding partnerships and linkages with other stakeholders.

Municipalities and Participants with Physical Disability

For optimum health, all Canadians, with or without a disability, should fully engage in physical activity. Sport for individuals with a disability (between 10% and 14% of the Canadian population) has grown tremendously over the last few decades. Nowadays, virtually any sport available to an able-bodied athlete can be pursued by a person with a disability at both the recreational and competitive levels. For further background on this topic see the Canadian Sport Centres publication “No Accidental Champions: Long-Term Athlete Development for Athletes with a Disability”.


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When municipalities develop facilities and programs every consideration should be give to accessibility for both able-bodied children and those with a disability, whether physical, sensory or intellectual. The popularity and success of the Paralympics and other competitions for athletes with a disability points the way to what is possible. To continue opening doors for athletes of all abilities, expanded programming for athletes with a disability must be a priority.

1. CS4L identi#es ‘awareness’ and ‘#rst contact’ as critical to engaging people with a disability. Municipal recreation should support the participation of di"erently-abled persons within their community by working with local disability-sport organizations to improve facility access, increase a"ordability of programs, and support participation with disability-speci#c expertise.

2. To develop optimally, Athletes with a Disability (AWADs) need training and competition partners, while for some AWADs, having a partner is a necessary and integral part of the sport. Athletes with intellectual disability may also require training partners. As the participation expenses of a partner may be a barrier to participation, municipal governments should make admission allowances for personal care support workers and/or training partners.

3. Municipal governments should audit their existing equipment or facilities regarding their suitability for athletes with a disability. Future facilities should be designed and equipment purchased so that AWADs can take full advantage of their athletic ability and minimize the sport-performance impact of their disability.

Facility Planning

Municipal government community centres, rinks, pools and other recreation facilities provide broad opportunities for participation and are strategic settings for promoting and implementing CS4L concepts of Physical Literacy, Enhanced Excellence and Active For Life.

4. Municipal governments should ensure that municipal parks and facilities provide public active living opportunities for all ages in their recreation facilities, parks and open spaces. The overall facility inventory should accommodate all seven stages of CS4L, with capacity to host international competition in some sports.

5. Parks and recreation facilities can assist the development of fundamental movement skills by providing safe and challenging environments for unstructured as well as organized toddler and preschooler play, available everyday regardless of weather.

6. Municipal recreation sta" should assess whether or not their equipment and facilities are sized appropriately (smaller athletes require smaller facilities), as equipment that that #ts well makes learning activities safer and much more enjoyable.


7. To provide equal opportunity for recreation and competition, municipal recreation facilities and programming should factor in the needs of the competitive athlete in balance with the objectives of lifelong activity and wellness. In earlier stages, developing physical capacities take precedence over competition; at later stages, the ability to compete well becomes the focus. When planning, developing or redeveloping facilities, municipal governments should consider both:

!" Athlete training needs for sports using the facility, and!" Facility requirements to host national and international competition

in some sports.

8. Municipalities should actively partner with neighbouring jurisdictions, sport organizations, school boards, colleges and universities and private facility providers to support comprehensive facility development beyond the traditional scope of a “recreation master plan.” See “Joint-use Facility Agreements and Innovative Facility Partnerships” in the “Promising Practices” chapter of this paper, which illustrate the opportunities and bene#ts of such partnership approaches.

Parks and Recreation Facilities – Space Allocation

Facility access needs to be provided across the entire continuum of sport users at all stages of development.

9. To advance CS4L-LTAD within their community, Municipal recreation departments could give preferential access to facility space to local sport organizations which respond appropriately (given the developmental stage of participants for whom the space is requested) to the following questions:

!" Is the program part of, or consistent with, the sport’s LTAD strategy?!" Does the program emphasize skill development or competition?!" What is the ratio of training to competition?!" How is playing time determined? Do all children get equal time? Do

they get to play all positions?!" Are children grouped according to calendar age or degree of

maturation?!" Are the coaches trained and/or certi#ed? What type of training do

they receive?(Adapted from the Canadian Sport Centres publication “Canadian Sport for Life: A Sport Parent’s Guide).

10. When allocating facility use, municipalities should also take into consideration athletes’ periodization requirements as presented by community sport organizations. “Periodization” in the sports context is a time management and planning technique. It provides the framework by which the complex array of training processes is arranged into a logical and scienti#cally-based schedule to bring about optimal improvements in performance (Canadian Sport Centres, Long-Term Athlete Development Resource Paper V2, pg 28). Properly periodized sports respond to peak needs at speci#c times, and do not follow the typical “every Wednesday for three hours” model of facility allocation.

DISCUSSION PAPER V1, DECEMBER 2010

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Recreation, Sport and Physical Activity Program Development

Lack of physical literacy has consequences not only for the individual child, but also for schools, recreation programs and organized sports. If children without physical literacy enroll in recreation and sport programs, instructors are hard-pressed to provide equal instruction to those needing remedial assistance with those having good movement skills. More typically, however, children and youth who are not physically literate are unlikely to take part in recreation programs for #tness, health and enjoyment. This reduces the potential enrollment in recreation programs with an associated reduction in revenue. Reduced participation and reduced revenues make programs vulnerable, and with many municipalities keeping close watch on the bottom line, may lead to program cancellations and even facility closure.

11. Municipal recreation departments should be at the forefront of physical literacy programming in the #rst two stages of Physical Literacy: Active Start and FUNdamentals. Further, where there is opportunity to do so, they should facilitate the transition to more advanced stages through partnership with local sports clubs.

12. Municipal recreation departments should inventory the variety of sport programs being delivered in their communities to identify what is available and determine the extent to which CS4L has been adopted.

13. The sport sector recognizes that many of the children and youth who enter their programs lack basic movement skills. As a primary service provider for children at the Active Start and FUNdamentals stages, municipal governments should make additional investment in the physical literacy programming to ensure that all children and youth develop basic movement skills.

14. Municipalities should (re)examine their recreational programming to ensure that young children are given the opportunity to sign-up for year-round programs that combine exposure to a number of di"erent sports, with fundamental movement skill learning opportunities and lots of skill-developing mini-games. Community recreation programs for pre-pubescent children should be designed to cover a range of physical literacy skills, rather than be organized as single sport programs.

"SOME LOCAL RECREATION ORGANIZATIONS ARE OFFERING YOUNG CHILDREN THE OPPORTUNITY TO SIGN!UP FOR YEAR!ROUND PROGRAMS THAT COMBINE EXPOSURE TO A NUMBER OF DIFFERENT SPORTS, WITH FUNDAMENTAL MOVEMENT SKILL LEARNING OPPORTUNITIES AND LOTS OF SKILL!DEVELOPING MINI!GAMES . THIS NEW APPROACH IS ALSO BEING TRIED BY SOME SPORT FACILITIES. SWIMMING POOLS ARE DEVELOPING ‘INTRODUCTION TO AQUATICS’ PROGRAMS THAT TEACH WATER SAFETY AND BASIC SWIMMING " WITH THE OPPORTUNITY TO TAKE THE FIRST STEPS TOWARDS COMPETITIVE SWIMMING, WATER POLO, SYNCHRONIZED SWIMMING AND DIVING.”

CANADIAN SPORT CENTRES, “DEVELOPING PHYSICAL LITERACY: A GUIDE FOR PARENTS OF CHILDREN AGES 0 % 12,” PG 21

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15. CS4L-LTAD “is contingent on an optimal training, competition and recovery program that is based on biological development and maturation versus chronological age (i.e. although young athletes may be the same age, their bodies are at very di"erent levels of development)” (Canadian Sport Centres, A Sport Parent’s Guide, pg 7) Municipal recreation programming should be based on this same premise. Strict age-divisioning may not be appropriate considering children of the same chronological age can be four years apart in developmental age.

16. Municipalities should have sta" properly trained in CS4L-LTAD for internal programs, and encourage training programs for external leaders.

17. Municipal recreation programmers and other front-line sta" working in the community should regularly assess their programming with reference to the following:!" Programs are accessible to all children and youth whether

they are able-bodied or have a disability.!" Multi-sport programs for the pre-adolescent children

are focused on skill development.!" Sport programs are delivered by trained or certi#ed

coaches or instructors.!" Sport training opportunities are at reasonable cost to

ensure access for all children.!" Sport and physical activity programs are linked strategically

with other interventions to address social problems.!" Information material about CS4L and LTAD for parents is

available at community centres.

“THE CHALLENGE OF ENSURING THAT CHILDREN FROM THESE DISADVANTAGED GROUPS DEVELOP PHYSICAL LITERACY WILL ONLY BE MET WHEN PARENTS AND CARE!GIVERS DEMAND THAT SCHOOLS, PRE!SCHOOL AND DAY CARE CENTRES, COMMUNITY RECREATION CENTRES AND SPORT ORGANIZATIONS MAKE PHYSICAL LITERACY A PRIORITY. THIS MEANS MAKING PROGRAMS CHILD!DEVELOPMENT CENTRED, RATHER THAN SPORT CENTRED, AND IT MEANS THAT PARENTS AND CARE!GIVERS NEED TO HOLD THE ORGANIZATIONS THAT WORK WITH THEIR CHILDREN ACCOUNTABLE FOR DELIVERING ACTIVITIES AND PROGRAMS THAT DEVELOP FUNDAMENTAL MOVEMENT AND FUNDAMENTAL SPORT SKILLS FROM BIRTH TO THE ONSET OF ADOLESCENCE.”

CANADIAN SPORT CENTRES, “DEVELOPING PHYSICAL LITERACY: A GUIDE FOR PARENTS OF CHILDREN AGES 0 % 12,” P 28

DISCUSSION PAPER V1, DECEMBER 2010

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Inclusivity in Recreation, Sport and Physical Activity Programming

Developing the ABCs of agility, balance, coordination, and speed, which are valuable in almost all sports, is central to physical literacy (Canadian Sport Centres, Developing Physical Literacy: A Guide for Parents of Children Ages 0 – 12, pg 18). Every child should have a wide range of opportunities and the quality instruction to develop physical literacy. Special attention needs to be given to those children growing up in di!cult circumstances, or those who come from populations that have traditionally been under-represented in organized physical activity, recreation, and sport. Under-represented groups include:

!" Aboriginal youth!" Youth with a disability!" Girls; especially those from ethnic

groups that have not traditionally valued physical activity, and

!" Disadvantaged inner-city youth.

While many children DO develop good physical skills on their own by trial-and-error, many do not, and for those the consequences can be severe. Municipalities should institute pro-active programs for at-risk children. “At-risk” is not a term describing a speci#c socio-economic group, but refers to children who have, or could have, problems in their development that may a"ect later functionality. In the context of sport any child who is not getting enough physical activity is “at-risk.”

18. Municipal governments should o"er opportunities to develop physical literacy to under-represented groups and those with limited #nancial resources. Organized physical activity and active play are particularly important for the healthy development of children with a disability if they are to acquire habits of lifelong activity. The program delivered to these groups should be consistent with CS4L principles to ensure quality programming includes development of the abilities of the participants resulting in mastery of skill and an enduring love of recreation, sport and physical activity.

Municipalities and Sport Tourism

19. Coordinate planning and investment for Major Event Hosting (as for sports excellence development) with neighbouring municipalities, along with sport organizations, school boards, colleges and universities and private facility providers, with speci#c reference to the comparative advantages and asset base of each partner and stakeholder.

20. Build a network of event organizers and establish databases of volunteers and other resources to improve sport tourism event coordination and streamline preparations.

Every child should have a wide range of opportunities and the quality instruction to develop physical literacy.



REFERENCES

Balyi, I., Way, R., Norris, S., Cardinal, C. & Higgs, C. (2005). Canadian sport for life: Long&term athlete development resource paper. Vancouver, BC: Canadian Sport Centres.

Canadian Sport Policy, 2002. Federation-Provincial/Territorial Priorities for Collaborative Action 2002-2005, 2002.

Higgs, C., Balyi, I. & Way, R. (2006). No accidental champions: Long&term athlete development for athletes with a disability. Vancouver, BC: Canadian Sport Centres.

Higgs, C., Balyi, I. & Way, R. (2008). Developing physical literacy: A guide for parents of children ages 0 to 12: A supplement to Canadian sport for life. Vancouver, BC: Canadian Sport Centres. Vancouver Sport Strategy, 2008. Way, R., Balyi, I. & Grove, J. (2007). Canadian sport for life: A sport parent’s guide. Ottawa, ON: Canadian Sport Centres.

We acknowledge the #nancial support of the Government of Canada through Sport Canada, a branch of the Department of Canadian Heritage.

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