HomeMy WebLinkAboutCSD-12-045 - Golf Operations ReviewStaff Re,~ort
KI~r~;x~.nT>~.R tammunity Services Department www.kitchenerca
REPORT TO: Community and Infrastructure Services Committee
DATE OF MEETING: March 19, 2012
SUBMITTED BY: Mike Selling, Acting Deputy CAO, Community Services,
741-2669
PREPARED BY: Kim Kugler, Director of Enterprise, 741-2544
WARD(S) INVOLVED: All
DATE OF REPORT: March 15, 2012
REPORT NO.: CSD-12-045
SUBJECT: GOLF OPERATIONS REVIEW -STAFF
RECOMMENDATION
RECOMMENDATION:
That staff be directed to continue to operate the golf courses using a blended model
which includes self operation of the course maintenance and administration, a
management contract for the pro and pro shop, and a concession lease for the golf
academy and food & beverage functions, and;
That dividends paid by the golf courses to the tax base in excess of the City's minimum
requirements (amounting to $1 million) be transferred from the Tax Stabilization Reserve
Fund to the Golf Stabilization Reserve Fund to reduce the accumulated deficit in golf.
BACKGROUND:
Report CSD-12-024 was presented at the Community and Infrastructure Services (CISC)
meeting on February 27, 2012. This report tabled the findings of the operational review of the
City's golf operations by National Golf Foundation (NGF). Staff were directed to engage the
public to obtain feedback on NGF's findings and the proposed operating models that could be
used for operating the City's golf courses.
REPORT:
The NGF operational review outlined three main operating models with two additional variations
that could be utilized to operate the City's golf courses. The main models are: self-operation,
management contract or lease agreement. The two variations are hybrid contract or concession
lease. The pros and cons for each model were identified in the report.
Following the CISC meeting on February 27, 2012, an article appeared in The Record that
captured some attention and feedback from the public. Comments added to the online The
Record story were collected along with letters and emails received by Council and City staff. In
addition to these comments, public engagement was sought with the assistance of the City's
Marketing and Communications staff in notifying the public through a media advisory and
posting information on the City's and the Kitchener Golf Course's websites about the open
house scheduled at Rockway Golf Course on Wednesday, March 7, 2012. An online feedback
survey was available from March 7 till March 14, 2012. Golf staff sent a newsletter with
information about the open house to 935+ users and followers of Kitchener Golf.
Feedback Results
The public were given an opportunity to attend an open house and complete a survey at
Rockway on March 7, 2012 where over 75 people attended. They were also given an
opportunity to complete a survey online prior March 14, 2012. A total of 63 surveys were
collected with 50 in person and 13 online.
People were asked to rank each operating model from 1 to 4 with 1 being their 15t choice and 4
being the last choice. In reviewing the feedback forms, the majority only picked 1 model and did
not rank their 2nd 3rd or 4t" choice.
Table 1: Survey Summary
Model /Ranking 1 2 3 4
Self Operation 31 7 4 1
Full Service Management Contract 3 5 7 1
Operating Lease 0 2 4 6
Current Blended Model 27 7 1 2
Of the 63 responses collected, 2 respondents did not select any of the models. The self
operation model was ranked as the 1St choice by 51% and the current blended model was
ranked 15' by 44%. These 2 models accounted for 95% of the vote indicating a strong
preference for the City to be involved in the operation of the golf courses.
In addition to the surveys, 32 public opinions were also collected through email and letters sent
to the City and comments made at therecord.com. Within this grouping, 5 people expressed a
preference for the sale of portions or all lands of Doon Valley or Rockway golf course or both.
The majority of the remaining comments indicated that the City should continue to operate the
golf courses. Details of all responses collected are in Appendix A.
Recommended Model
As identified in NGF's report, the golf course operation is not broken, but has been faced with
declining revenues. The decline in revenues is common across North America and is due to
economic conditions, declining interest or time to play golf, high fees or inconsistent weather
conditions. The City's golf courses have a long community history with operating Rockway
since 1935 and 1966 for Doon Valley. These courses are providing an affordable recreational
activity for the public with no subsidy from the tax base. The City's golf courses have managed
to generate revenues that exceeded operating expenses, paid annual capital programs, and
contribute millions of dollars over the years to the City's taxes. NGF commented that none of
the "privatization" alternatives would likely lead to a significant improvement in economic
performance of Kitchener Golf and that the existing dedicated, hardworking experienced staff of
professionals offers the best likelihood of improved economic performance for Kitchener Golf
going forward.
The operating changes made in 2011 improved the financial position of the golf operations by
$700,000.
Benefits achieved in 2011 with the blended operating model include a reduction in operating
expenses of $420,000, streamlined administrative functions, growth in expertise in the pro shop
and golf academy. Another benefit was linking performance bonuses to the pro shop
management contract for improvements in customer service and revenues.
Staff recommend that the City continue to operate with a blended model with a focus on
monitoring and improving the financial position and customer experience. The blended
operating model will provide Kitchener Golf with a system of achieving long-term economic
stability and sustainability. These changes included leasing out food & beverage and the golf
academy, streamlining administration, reducing fees, implementing cart memberships, and
making full memberships available.
Approach to Addressing Accumulated Deficit
The 2011 year end variance reports indicate that the golf courses were able to generate a net
revenue of $8,687 (budget $8,037) even after paying a dividend, but continue to carry an
accumulated deficit balance of $1,750,000 in the stabilization reserve fund. This deficit results
partly from excess dividend payments made by golf to the tax base over many years. The
dividend policy for golf requires that a dividend equivalent to the notional value of property and
income taxes be paid to the City annually. This dividend policy was negotiated with golf industry
stakeholders when the Doon Valley expansion was first proposed. Over the past 15 years,
dividends of $3.7 million have been paid by the golf courses to the tax base and this amount
exceeds the required base dividend by approximately $1 million. This reflects the fact that most
of the available profits have been extracted from the golf operation for the benefit of tax rate
reduction, when in hindsight it would have been advisable for golf to retain these excess profits
to build a stabilization fund to provide a cushion against a downturn in demand. Any year end
surplus in the tax base is closed to the Tax Stabilization Reserve Fund which at the end of 2011
has a positive balance of $3.6 million (see Table 2 below).
Table 2:
City of Kitchener
Tax Stabilization Reserve Fund
Ten-Year Reserve Projection
(000's)
Actual Actual Actual Pro~ection
2009 2010 2011 2012 2013 2014 2015 2016 2017 2018
Balance, beginning of year 3,938 1,760 1,159 3,596 1,714 1,766 1,819 1,873 1,929 1,987
Interest 95 34 38 73 51 53 55 56 58 60
Operating surplus (deficit) (276) 875 1,149 - - - - - -
Transferfrom Gas Operating 2,000
Transfer to Golf Stabilization (1,000)
Transfer to operating (1,997) (1,510) (750) (955) - - - - - -
Balanc e, end of year 1,760 1,159 3,596 1,714 1, 766 1, 819 1, 873 1, 929 1,987 2,047
The golf courses have largely exhausted opportunities for cost reduction. Improvements to the
net revenue in the golf courses will therefore only be realized through revenue growth. It is
unreasonable to expect that the accumulated deficit (in addition to required capital upgrades)
can be eliminated under a "status quo" approach entirely through revenue growth. Recognizing
that golf courses have paid dividends well in excess of the minimum requirement and that the
tax stabilization reserve fund presently has a balance, it is recommended that the amount of
dividends paid in excess of the policy be refunded to the golf courses. This will reduce the
accumulated deficit in golf to a $0.75 million which must be eliminated through the performance
of the golf operations. It is important to note that this does not reflect a subsidy from the tax
base to the golf courses; rather it simply adjusts the historic dividend to reflect the express
wording of the original "level playing field agreement" between the golf industry and the City of
Kitchener.
The reduction in the accumulated deficit will allow the golf operations to continue to operate with
a blended model of self operation, management contract and concession lease. The annual
golf revenues will cover the operating expenses, annual capital costs and the debenture
payments. The annual dividend payable to the City will need to be reviewed annually to monitor
what is occurring in the golf industry and any operating surpluses will be allocated to reduce the
deficit or fund necessary capital works. Should Council not support the transfer of excess
dividends back to the golf operation, retaining the golf operation should be reconsidered as it is
unlikely that the deficit could be eliminated within a reasonable time horizon.
ALIGNMENT WITH CITY OF KITCHENER STRATEGIC PLAN:
This report aligns with C1 Leadership and Community Engagement where residents are
engaged and active in decision making related to the operation of the municipal golf courses. It
also aligns with Quality of Life, specifically C6.1 All Voices Matter, C6.2 A City where Everyone
has a Place, C6.3 Nurture a Sense of Pride and Community, C6.5 Community Programs and
Facilities. E1 Finance Management, E2 Asset Management and E5 Organizational Governance
are also affected.
FINANCIAL IMPLICATIONS:
A onetime transfer of $1 million from the Tax Stabilization Reserve Fund to the Golf Stabilization
Reserve Fund will refund dividends paid by the golf courses to the City in excess of the
minimum requirements of the dividend policy.
COMMUNITY ENGAGEMENT:
As highlighted in the report, the public were engaged in providing comments on the operating
options. The City's communication department sent out a media release of the open house on
February 27t" followed by a media advisory on March 2nd. Social media was also utilized via
Twitter and Facebook on March 5t". Information on the open house was posted on the City's
and golf course website. It was included in the golf electronic newsletter that was sent out to
935 member and non-member on March 15t
ACKNOWLEDGED BY: Mike Selling, Acting Deputy CAO, Community Services Department
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