I had to look at it a couple times myself before it made sense. The current subsidy will increase 440,000 in year one. In year 2 the increase is 250,000 and in years 3 thru 10 it will increase 200,000 annually. The total increase over the 10 years is an additional 2.29 million given to SJSE, which uses it to operate the arena and subsidize the teams. It's a little fuzzy, but their is an overall increase during the 10 year period. Didn't the growlers receive a subsidy last year but still lost money?
If these teams need money from their local governments every year, the Growlers aren't alone in this, to break even or report a small profit, then they aren't really making any money at all. Then you get the cries and complaints that government shouldn't be funding private enterprise, then the counter argument that it helps the local economy etc.
The Growlers did not receive a subsidy, the stadium did. Whether it is empty or filled it still needs a subsidy. When the stadium is used by the Growlers it consumes electricity, requires staffing etc. which increases the cost versus being empty. So SJSE tried to offload all of those incremental costs and some of the other operational costs onto the Growlers in the form of rent the % of the concessions collected. It totalled up to usury because SJSE incompetence has scared away any other businesses and Acts to use Mile One. The stadium is basically empty all year without the Growlers (and Edge).
So MacDonald said f*** you I'm out. The Edge did as well. They walked away smartly when the entire city was going bananas with the Leafs in town for a full week including an exhibition game. The City crawled back realizing they are a bunch of morons for looking at the cost model through the lens they were using.
MacDonald commissioned his own study that concluded the Growlers will bring $15M in benefit to St. John's (downtown businesses, tourism, Leafs coming to town, Marlies coming to town etc.) With that benefit also in the equation, the negotiations obviously took a different angle.
MacDonald is not looking to make a profit. Just break even. The increase in subsidy over the next 10 years is probably based on a forecasted attendance figure with a % of those concessions going back to the city in part. If the Growlers attenandance is higher than the forecasts, then the subsidy should be less. But factoring in the $15M net benefit, St. John's stands to be in the Black vis a vis tourism, local businesses etc.