November 23, 1998

TO:Urban Environmental and Development Committee

FROM:General Manager, Transportation Services

Executive Director & Chief Planner, City Planning

Medical Officer of Health

SUBJECT:F.G. Gardiner Expressway East Dismantling Project

WARD:Councillors Jack Layton and Pam McConnell, Ward 25 - Don River

Councillors Sandra Bussin and Tom Jakobek, Ward 26 - East Toronto

Purpose:

To propose the deferral of the F.G. Gardiner Expressway East Dismantling Project until mid 1999 to permit the development of a community improvement plan, to explore alternative rail service delivery options for the Port Area, and to conduct an air quality monitoring program with a view to identifying an appropriate mitigation strategy.

Funding Sources, Financial Implications and Impact Statement:

The proposed 1999-2003 Capital Works Program for the Transportation Services Division includes $13.2 million for the F.G. Gardiner Expressway East Dismantling Project in 1999 (C-TR-026). The deferral of this projects to mid-1999 will allow a portion of those funds to be redistributed to fund deferred maintenance projects. We recommend that the proposed 1999-2003 Capital Works Program be revised to include $3 million for the Dismantling Project in 1999. These funds are required to cover the costs of additional studies described in this report, additional emergency repairs and detour road preparations should the project proceed in 1999.

Recommendations:

It is recommended that:

(1)the Commissioner of Works and Emergency Services, in consultation with the Commissioner of Urban Planning and Development Services and the Toronto Economic Development Corporation, conduct a study of alternative rail service delivery options in the Port Area and report thereon to the Urban Environment and Development Committee no later than May 1999;

(2)the City Solicitor be authorized to prepare a By-law to designate the area within the dashed lines shown on Figure No. 3 in Appendix No. 1 of this report as a Community Improvement Area pursuant to Section No. 28 of the Planning Act;

(3)the Commissioner of Urban Planning and Development Services, in consultation with the Commissioner of Works and Emergency Services, prepare a Community Improvement Plan for the area shown on Figure No. 3 in Appendix No. 1 of this report, and report thereon to the Urban Environment and Development Committee no later than May 1999;

(4)the Commissioner of Works and Emergency Services, in consultation with the Medical Officer of Health and the Commissioner of Urban Planning and Development Services, develop and conduct an ambient air quality monitoring program for the area bounded by Queen Street West, the Don Roadway, Commissioners Street and Leslie Street, and report thereon to the Urban Environment and Development Committee no later than May 1999;

(5)the 1999 Transportation Capital Works Program submission for the F.G. Gardiner Expressway (Don Valley Parkway to Leslie Street), (C-TR-026) be revised from $13.32million to $3.0 million and that, of the $10.32 million deferred, $4.5million be reallocated to offset the reductions in 1999 transportation capital expenditures recommended by the Chief Administrative Officer and $5.82 million be reallocated to road maintenance and rehabilitation projects previously recommended to be deferred from 1999 to 2000; and

(6)this report be forwarded to the Board of Health for information.

Council Reference/Background/History:

At its meeting held on July 13, 1998, the Urban Environment and Development Committee had before it the following reports and communications:

(i)(July 7 and 9, 1998) from the General Manager, Transportation Services, entitled F.G.Gardiner Expressway East Dismantling Project");

(ii)(July 13, 1998) from Councillors Sandra Bussin and Tom Jakobek, East Toronto;

(iii)(June 18, 1998) from the Task Force on the Gardiner/Lake Shore Corridor;

(iv)(June 8, 1998) from the Chair, South East Toronto Industrial Advisory Committee; and

(v)(July 8, 1998) from the Chief Financial Officer and City Treasurer and the Commissioner of Works and Emergency Services, entitled "F.G. Gardiner Expressway East Dismantling Project - Railway Relocation along Lake Shore Boulevard from Don Roadway to Leslie Street - Contract No. T-54-98, Tender No. 62-1998".

Upon hearing deputations on the foregoing, Urban Environment and Development Committee:

(1)deferred consideration of these reports and communications until its meeting scheduled to be held on October 5, 1998;

(2)requested the General Manager, Transportation Services:

(a)to develop, in consultation with the local community, a plan to minimize traffic infiltration and improve the safety of pedestrians on Eastern Avenue and other streets in South Riverdale, as well as in affected areas of East Toronto (Ward 26), and submit a report thereon to the October 5, 1998, meeting of the Urban Environment and Development Committee;

(b)to conduct a detailed study of current and future rail movements (including Harbour Remediation and Transfer Facility trains) through this corridor, and their impacts, and review in detail the rail issues raised by the deputations, and submit a report thereon, including any alternative options, to the October 5, 1998, meeting of the Urban Environment and Development Committee;

(c)to submit a report containing any origin destination traffic studies to the October5,1998 meeting of the Urban Environment and Development Committee; and

(d)to meet with representatives of the film industry to develop a plan for routing large vehicles during the demolition of the F.G. Gardiner Expressway East;

(3)requested the Medical Officer of Health to submit a report to the October 5, 1998, meeting of the Urban Environment and Development Committee on the short and long-term impacts of dismantling or refurbishing the Gardiner Expressway East on the health of children in the demolition area, including the impact of distribution of particulates and air quality, such report to be presented to the local community for its review and approval prior to consideration by the Urban Environment and Development Committee; and

(4)requested the Chief Financial Officer and Treasurer to submit a report to the October 5, 1998, meeting of the Urban Environment and Development Committee on possible funding sources available for the proposed extension of the F.G. Gardiner Expressway over Leslie Street, should Council decide to proceed with that option.

Due to scheduling conflicts and the need for additional time to meet with members of the public, preparation of the reports requested by Committee was deferred by the Chair until the November 30, 1998, meeting.

Comments and/or Discussion and/or Justification:

Corporate Position:

The F.G. Gardiner Expressway East Dismantling Project is more than just a transportation project. The plan has many Corporate and community benefits over retaining the existing structure in terms of "city-building", greening and capital cost savings of approximately $14 million (net present value, 1996 dollars).

Admittedly, the planning for this major project was constrained by the need to deal with the severe state of structural deterioration of the Expressway. The speed at which approvals were obtained was in the interest of public safety. A process to address several planning issues of importance to the local neighbourhood is recommended in this report. The results of this process will make the Dismantling Project more beneficial for the local community, in addition to the Corporate benefits.

Historical Background:

Given the lengthy period since the F.G. Gardiner Expressway East Dismantling Project was first approved, it is appropriate to review the background and context of this project. The section of the Gardiner Expressway east of the Don Valley Parkway was to be the first part of the Scarborough Expressway which was approved by both Metro Council and City Council in 1967. However, this project was highly controversial, requiring the demolition of 700 homes between Leslie Street and Woodbine Avenue alone. In 1971, a citizens group successfully lobbied the Ontario Municipal Board to order all work on the Scarborough Expressway stopped. As a result, only the elevated section of the expressway was constructed between the Don Valley Parkway and Leslie Street, with a temporary terminus constructed at Leslie Street.

Over the years, major maintenance of the east Gardiner was not provided in part due to the indecision surrounding the Scarborough Expressway. In 1994, the former Metro Planning Department completed a major transportation planning study that recommended the abandonment of the Scarborough Transportation Corridor (STC), effectively confirming that the F.G. Gardiner Expressway would not be extended eastward from the present terminus at Leslie Street. Metro Council subsequently decided to remove the STC from the Official Plan and sell the associated lands. Given this action and the continuing deterioration of this section of the expressway, a decision was required on whether to repair or demolish the east Gardiner.

The F.G. Gardiner Expressway East Environmental Assessment and Preliminary Design Study (E.A. Study) was completed in November 1996 with the assistance of outside consulting engineers. The conclusion of this E.A. study was that Dismantling was less costly in the long term, was superior from an urban design perspective and provided similar transportation service to a rehabilitation option. On the basis of these findings, the former City of Toronto and Metro Toronto Councils endorsed the Dismantling Project in December 1996.

The following paragraphs briefly summarize the information provided in the attached three reports.

Appendix No. 1:City Building Benefits and Community Improvements

The dismantling of the F.G. Gardiner East and its replacement with an at-grade road of equal capacity is a valuable city-building project. The removal of the elevated structure and the "greening" of the corridor through the planting of trees, the construction of a recreational trail and the installation of public art will create a "people-oriented" place along the waterfront. It will support other initiatives intended to create a healthy, liveable and vibrant city, including the promotion of a positive investment climate for environmentally clean, high value added businesses, like the burgeoning film industry.

Public consultation has found that the development of a Community Improvement Plan for the adjacent neighbourhood is desirable. Plans developed through this process in close consultation with local residents and businesses will address the stated community needs to minimize traffic impacts, improve pedestrian and personal safety and enhance the physical amenity of the neighbourhood. The F.G. Gardiner East Dismantling Project provides a strategic opportunity to implement some of beneficial community improvements that have been suggested by residents to date.

Appendix No. 2:Traffic Infiltration, Rail relocation Design, Origin-Destination Information and Truck Routing During Construction

Meetings held with South Riverdale residents have revealed that their issues of concern are for the most part centred around existing conditions and are broader than just traffic infiltration. Some immediate concerns on pedestrian safety have been addressed by the installation of advisory signs and pavement markings. The balance of the community concerns will be addressed in the Community Improvement Plan process described later in this report.

Film Industry concerns about the impact of relocating the rail line to the north side of Lake Shore Boulevard have been addressed by a minor design revision. This revised design, as shown on Figure No. A-1 of Appendix No. 2, involves keeping the rail line in the median of Lake Shore Boulevard, east of Carlaw Avenue. Other issues raised on the rail relocation design include the safety of pedestrians at the level crossing on Logan Avenue and delays to commuters travelling through the area. There are several possible rail service delivery options which could resolve these issues by removing rail service from the Lake Shore Boulevard corridor. We require additional time to study these options and identify all of the benefits and impacts. Councillor Jakobek has also brought to our attention the possibility of additional train movements created by new development in the Port Area.

We have committed to maintain truck access for the film industry during the Dismantling Project. Full details on this, and origin-destination information obtained during the E.A. Study are provided in Appendix No. 2.

Appendix No. 3:Air Quality Impacts

In the last decade, epidemiological studies have clearly demonstrated the impact of poor air quality on human health. The health effects that have been generally observed range in severity from minor irritation of the nose and throat to worsening of heart and lung conditions which may lead to hospitalization and premature death. Poor air quality can be especially harmful to children, seniors, pregnant women, people with heart and lung conditions and smokers.

The South Riverdale community has been concerned for a number of years about the air quality impacts of existing local industrial operations and emissions from transportation sources. Transportation planning needs to consider air quality impacts on human health and attach priority to modes of transportation that provide the greatest overall benefit to the local air shed and community. To date, the steps taken to assess the air quality impacts associated with the F.G. Gardiner Expressway Dismantling project include the phased assessment completed in 1996 and 1998. An ambient air quality monitoring program will better characterize overall community exposure to airborne pollutants and support a more accurate analysis of the impacts associated with either option of the F.G. Gardiner Expressway Dismantling project.

Impacts of Deferral:

The deferral of the Dismantling project to undertake the additional work described above results in a cumulative delay in the project schedule of one year. While the emergency repairs undertaken this year on the substructure of the expressway will last through the Winter, a detailed condition survey will need to be undertaken early in the Spring of 1999 to assess the need for further remedial action. To accommodate the potential for additional emergency repairs associated with the continuing deterioration of the facility, we recommend that funds of $1 million be set aside to provide for emergency repairs in 1999. However, we must again stress that this structure is deteriorating, and emergency repairs cannot ensure the safety of this facility indefinitely. As a result, it is critical that either the Dismantling Project or full rehabilitation of the structure begin in the year 2000. To ensure this occurs, Council must make a decision by the middle of 1999 on whether or not it will support the Dismantling Project. In addition to the emergency repair funds, an additional $2 million will be needed in 1999 for additional studies, and possibly detailed design and the detour road preparations should the Dismantling Project proceed in 1999.

We will collectively report back on the results of the additional studies described in this report by May 1999.

Contact Name:

Kathleen Llewellyn-Thomas

Director of Engineering Services, Districts 1 & 2

392-8590

David C. KaufmanBarry H. Gutteridge

General Manager, Transportation ServicesCommissioner, Works and Emergency Services

Paul J. BedfordVirginia M. West

Executive Director and Chief PlannerCommissioner,

City Planning DivisionUrban Planning and Development Services

Dr. Sheela BasrurShirley Hoy

Medical Officer of HealthCommissioner,

Community and Neighbourhood Services

JPK/jc

Appendix No. 1:

Community Improvements associated with the F.G. Gardiner Expressway East Dismantling Project

Subject:Community Improvements Associated with the F.G. Gardiner Expressway East Dismantling Project. (Ward 25, Don River) (Ward 26, East Toronto)

Purpose:To discuss the city building benefits of the Gardiner East Dismantling Project, and possible community improvements associated with it.

Background:

The Gardiner East Dismantling Project was initiated in 1996 when a feasibility analysis revealed that dismantling the Expressway east of the Don Valley Parkway was approximately 14 million dollars cheaper than rehabilitating it over time. City staff then embarked upon, and received a Class Environmental Assessment approval to undertake the dismantling project. A number of road design options were developed for the at grade arterial road. The designs were reviewed in consultation with community interest groups, and a preferred option was chosen. The current road design proposes 3 traffic lanes in each direction, a rail corridor in the median east of Carlaw Avenue, two lane ramps to the elevated Gardiner near Bouchette Street and an adjacent "green" corridor which has a maximum width of 27 metres. (See Project Context Map ). Recently, local residents from the area north of Eastern Avenue expressed an interest in having a Community Improvement Plan developed for their area in conjunction with the project.

The purpose of this report is to briefly describe some of the broader city building benefits of the project, and to discuss possible community improvements which could be undertaken in conjunction with the project in order to enhance the adjacent neighbourhood.

Comments:

a)City Building Benefits

The Gardiner East Dismantling Project is much more than a road construction project. It provides a rare opportunity to add value to the City by creating an enduring piece of public infrastructure that contributes to city building. This cost effective public project has the potential to enhance Toronto's international reputation as one of the world's most pleasant and liveable cities. Livability of modern cities is a significant factor in their long term economic prosperity and health. Other North American Cities such as San Francisco and New York have dismantled elevated expressways in the last few years, have replaced them with at grade boulevards, and have benefited from such projects.

One major component of the Gardiner Expressway East Dismantling Project is the "greening" of the corridor through the planting of trees, the construction of a recreation trail, and the installation of public art. This "greening" would not be feasible without dismantling the existing elevated Gardiner Expressway structure.

The dismantling of the Gardiner East and its replacement with an arterial boulevard of equal capacity is a valuable city building project because it:

• creates an attractive "green" corridor that enhances the physical amenity of the adjacent residential and business community;

• links with other important environmental/ "greening" projects such as the Don River Revitalization, the "greening" Strategy for the Port, the revitalization of the West Don Lands and the development of a new park on the former Greenwood Racetrack lands;

• supports other initiatives intended to create a healthy, liveable and vibrant city;

• improves recreational opportunities along the waterfront;

• creates better connections to existing recreational corridors;

• develops a "people-oriented" place along the waterfront;

• establishes better access to the waterfront through the creation of better intersection conditions for pedestrians, cyclists, and in line skaters;

• builds a positive physical image of the project area;

• promotes a positive investment climate for adjacent environmentally clean, high value added businesses, particularly the Film Industry;

• creates a positive climate for the dismantling of the Gardiner Expressway west of the Don River; and

• provides an opportunity to undertake community improvements to further enhance the value of the project.

b)Community Improvement Opportunities

During public consultation on the project some area residents suggested that a Community Improvement Plan be developed for the adjacent the neighbourhood to minimize traffic impacts, improve pedestrian safety, and enhance the physical amenity of neighbourhood. City staff then developed possible community improvements based on preliminary input from the community. Should City Council authorize the preparation of a Community Improvement Plan, the proposals in this report will be further refined and examined. Additional consultation with the local community will be undertaken to help shape and prioritize the projects included in the Community Improvement Plan.

Some of the potential community improvements identified on Figure 3 of this report include:

• pavement striping on the north side of Eastern Avenue between Leslie Street and Rushbrooke Avenue to buffer pedestrians from vehicular traffic;

• sidewalks and tree planting on Booth Avenue south of Eastern Avenue;

• mid block pedestrian walkways connecting Eastern Avenue to the 27 metre wide green corridor to be constructed as part of the Gardiner East Dismantling Project;

• replacement of traffic calming measures on Pape Avenue with new widened sidewalks, tree planting, and narrowed road lane widths;

• tree planting on Knox Avenue south of Eastern Avenue;

• a traffic barrier on Logan Avenue south of Eastern Avenue to separate local car and truck traffic;

• extension of the green corridor proposed for the north side of Lake Shore Boulevard to connect to the new park at the Greenwood Racetrack development site;

• relocation of a crosswalk at Eastern Avenue from Caroline Avenue to Larchmount Avenue to improve pedestrian safety;

• improvements to Leslieville Park to enhance safety and re-use the field house for community usage;

• enhancements to existing bus service;

• streetscaping and/or facade improvements to the Queen Street East commercial strip to improve its image and attract new businesses; and

• conversion of Eastern Avenue to 3 lanes with peak period directional control in order to allow for sidewalk widening and tree planting along the street edge.

City staff have also taken the proactive step of beginning some community improvements to reduce conflicts between pedestrians and vehicles in the neighbourhood north of Eastern Avenue. These steps include the painting of crosswalk lines and stop bar lines on local streets, and the posting of school advisory signs in the vicinity of Bruce Public School.

Conclusions:

From a city building perspective, the Gardiner East Dismantling Project has positive impacts and is worthy of implementation. It also provides a strategic opportunity to implement beneficial community improvements in the surrounding neighbourhood. This is an important public project that requires a well balanced corporate decision making perspective in order to work, and should be given the appropriate corporate priority.

Contact Names:

Lance AlexanderEric Pedersen

Community Planning South, East Section Urban Design, South District

Telephone: (416) 392-7573 Telephone: (416) 392-1130

Fax: (416) 392-1330 Fax: (416) 392-1330

E-mail: lalexand@city.toronto.on.caE-mail: epederse@city.toronto.on.ca

Appendix No. 2:

F.G. Gardiner Expressway East Dismantling Project

Traffic Infiltration, Rail Relocation Design, Origin-Destination Information

and Truck Routing During Construction

Subject:F.G. Gardiner Expressway East Dismantling Project

Purpose:To provide additional information as requested by Urban Environment and Development Committee

Council Reference/Background/History:

At its meeting held on July 13, 1998, Urban Environment and Development Committee requested the General Manager, Transportation Services:

(a)to develop, in consultation with the local community, a plan to minimize traffic infiltration and improve the safety of pedestrians on Eastern Avenue and other streets in South Riverdale, as well as in affected areas of East Toronto (Ward 26), and submit a report thereon to the October 5, 1998, meeting of the Urban Environment and Development Committee;

(b)to conduct a detailed study of current and future rail movements (including Harbour Remediation and Transfer Facility trains) through this corridor, and their impacts, and review in detail the rail issues raised by the deputations, and submit a report thereon, including any alternative options, to the October 5, 1998, meeting of the Urban Environment and Development Committee;

(c)to submit a report containing any origin destination traffic studies to the October5,1998 meeting of the Urban Environment and Development Committee; and

(d)to meet with representatives of the film industry to develop a plan for routing large vehicles during the demolitation of the F.G. Gardiner Expressway East.

Due to scheduling conflicts and the need for additional time to meet with members of the public, preparation of the reports requested by Committee was deferred by the Chair until the November 30, 1998, meeting.

Discussion:

The discussion below addresses each of the requests made by Committee as described above.

Item (a):Traffic Infiltration and Pedestrian Safety in South Riverdale

The origin-destination information obtained during the Environmental Assessment Study (E.A. Study) for the Dismantling Project showed that the majority of the users of the east portion of the Gardiner Expressway are travelling through the area. Based on this information, we concluded that if the Dismantling Project provided a similar level of traffic service to that which these motorists experience today, these motorists will not divert to other routes after dismantling is complete.

Throughout the planning and detailed design process for the F.G. Gardiner Expressway East Dismantling Project, meetings have been held with South Riverdale residents and business owners to seek their input on the project. From these meetings, and meetings that were held subsequent to the July 13, 1998, meeting of the Urban Environment and Development Committee (UEDC), we have found that the issues of concern to the South Riverdale neighbourhood are for the most part centred around existing conditions and are far broader than just traffic infiltration. These concerns can be grouped into three general categories as follows:

(i)traffic operations and safety concerns that do not require capital improvements;

(ii)traffic operations and safety concerns that require capital improvements; and

(iii)non-traffic related concerns that impact on the quality of life in the neighbourhood (ie. need for parks, community centre, swimming pool, skating rinks and connections to waterfront).

Concerns that fall into category (i) which could be addressed without conducting further public consultation or obtaining Council authority were completed in October. This includes the painting of stop bars and crosswalk lines on Marigold Avenue, Berkshire Avenue, Caroline Avenue, Pape Avenue, Howard Avenue and Booth Avenue at their intersections with Eastern Avenue, as well as the installation of additional school zone advisory signs on Larchmount Avenue and Berkshire Avenue. Those concerns in category (i) that require public consultation and Council authority are in the process of being analysed. These include a westbound left-turn prohibition at Queen Street East and Berkshire Avenue, the creation of an operational or physical dead end on Logan Avenue between Eastern Avenue and Lake Shore Boulevard East, and the installation or relocation of traffic control devices on Eastern Avenue.

In discussions with staff of the City Planning Division, it was decided that category (ii) and (iii) concerns would be better addressed through the Community Improvement Plan process. A separate report by City Planning on these issues is provided in Appendix No. 1.

Item (b):Current and Future Rail Movements and Alternative Rail Designs

Current rail movements along Lake Shore Boulevard East, east of the Don Roadway were discussed in the July 7, 1998, report to UEDC, which has been provided for Committee's consideration along with this report.

Since the volume of rail traffic is governed by the needs of its customers, it is very difficult to predict future rail usage in the Port Area. However, the following information on historical rail usage in the Port Area may indicate the direction of future rail usage.

Information provided by the Toronto Terminals Railway indicates that current rail usage in the Port Area is substantially less than usage in the early 1980's. Between 1984 and 1996, the number of rail cars processed at the Keating Rail Yard declined from approximately 1,100 cars per month to approximately 200 cars per month. This represents a drop in rail usage of over 80 per cent. Whether or not this type of decline will continue in the future is uncertain, however, TEDCO staff and the South East Toronto Industrial Advisory Committee have both indicated that it is important to continue to provide rail service to the Port Area.

Regarding the railway relocation design, three main concerns have been presented at meetings with community representatives as well as at the July 13, 1998, meeting of UEDC:

(a)representatives of the film industry located on the north side of Lake Shore Boulevard East, east of Carlaw Avenue, are concerned about the potential noise and vibration impacts associated with relocating the rail line form the median to the north side of Lake Shore Boulevard East;

(b)residents on Logan Avenue north of Lake Shore Boulevard East are concerned about potential impacts on pedestrian safety and generally increased proximity of trains associated with the relocation of the rail line from the median to the north side of Lake Shore Boulevard East and the creation of a level crossing of Logan Avenue at Lake Shore Boulevard East; and

(c)motorists with origins or destinations east of Leslie Street are concerned about potential delays from railway crossings between Leslie Street and Carlaw Avenue.

Film Industry Concerns:

In meetings with film industry representatives, we presented an alternative design for the rail relocation in which the rail line would remain in approximately its present location within the median of Lake Shore Boulevard East, east of Carlaw Avenue. West of Carlaw Avenue the rail line would still be relocated from the median to the north side of Lake Shore Boulevard East. Figure No.1 depicts this rail relocation design. This design is similar to the original rail relocation concept presented in the E.A. report, and has the following benefits:

(i)leaving the rail in the median east of Carlaw Avenue maintains the status quo for the filmindustries with respect to the effects of train movements on their operations;

(ii)the number of level crossings of the westbound lanes of Lake Shore Boulevard East would be reduced from three to one, reducing the number of potential conflict locations and reducing the costs for level crossings; and

(iii)crossing protection for the level crossing at Carlaw Avenue would be provided by the traffic control signals, reducing the cost of rail signalling equipment.

In a letter dated September 16, 1998, Toronto Film Studios indicated that this design removes their most crucial objection to the Dismantling Project.

It should be noted that this design change does not impact on other physical components of the project and does not significantly change the capital cost of the rail relocation component. However, this change in design will require a minor adjustment to construction staging activities. This is because, unlike the existing design of relocating the entire rail line to the north side of Lake Shore Boulevard East, this new rail design cannot be constructed before the existing Expressway structure is removed. While this is not seen as a serious constraint on construction or demolition activities, it does require some operational changes during construction to maintain adequate capacity to/from the new Gardiner ramp during phase 3 of construction. Finally, the public art concept of maintaining some Expressway columns in the section of Lake Shore Boulevard East near Carlaw Avenue will not be feasible with this rail design. This new design and its benefits and impacts were presented to the Design and Construction Liaison Group. While there was mixed reaction to the loss of the columns in the median, no other concerns were raised.

Logan Residents/Motorists' Concerns:

To resolve the concerns of Logan Avenue residents would require more significant design changes, affecting rail facilities that were previously unaffected. Similarly, to ensure no delays to motorists would require removing all existing and proposed level crossings on Lake Shore Boulevard East. We should note that our analysis indicates that delays to Gardiner Expressway and Lake Shore Boulevard East traffic due to train movements will be minor.

During the planning and E.A. Study for the Dismantling Project, we focused on maintaining the same level of rail access in the Port Area as is provided today while incurring a minimum cost to the Corporation. We concluded that the rail service could be provided in the same corridor with minimal impacts, and, therefore, larger scale rail modifications were not developed.

Work done since the July 13, 1998, meeting of Urban Environmental and Development Committee indicates that there are several possible design alternatives for addressing the concerns of Logan Avenue residents and commuters. A more comprehensive study of alternative rail service delivery options in the Port Area is required to determine all of the benefits and impacts of these options. Such a study should be undertaken in consultation with TEDCO, the owner of the rail lines in the Port Area, and with Urban Planning and Development Services. This study must be completed by May, 1999 in order to permit the first stage of construction of the Dismantling Project to begin in 1999.

Item (c)Origin - Destination Traffic Studies

Origin and destination information was obtained during the E.A. Study using the 1986 and 1991 Transportation Tomorrow Surveys and the former Metro Planning's EMME/2 computerized transportation planning model. The origins and destinations of motorists using the Gardiner Expressway east of the Don River during the morning peak period are as follows:

Origins:

(a)42 to 48 per cent from Riverdale, the Port Area, the Beaches, and the north Beaches;

(b)11 to 12 per cent from the portion of Scarborough south of the Lake Shore GO rail line;

(c)34 to 39 per cent from the rest of Scarborough and East York;

(d)7 per cent from Durham Region;

Destinations:

(e)48 to 50 per cent to West Metro and West GTA;

(f)34 to 35 per cent to downtown Toronto (south of Queen Street); and

(g)15 to 18 per cent to midtown Toronto (south of Bloor Street).

Item (d)Routing Film Industry vehicles during construction

A meeting was held with representatives of Toronto Film Studies who had expressed concern about maintaining their existing driveway on Lake Shore Boulevard East during the Gardiner Dismantling Project. This driveway located on the north side of Lake Shore Boulevard East, east of Carlaw Avenue, provides access to westbound Lake Shore Boulevard East and is used by large trucks travelling to and from location shoots.

Generally speaking, during construction projects we make provisions for maintaining property access during construction. It will be more challenging to maintain access during the demolition phase of the project because a complete closure of westbound Lake Shore Boulevard East will be required, however there are options open. We own a large amount of property on the north side of Lake Shore Boulevard East and we could use this property to detour film industry traffic around the construction zone. The best method of maintaining access will vary during each stage of the project, and we will ensure that the contractor is required to provide that access at all times.

Summary:

Some immediate concerns of South Riverdale residents on traffic infiltration and pedestrian safety have been addressed by the installation of advisory signs and pavement markings. The balance of their concerns will be addressed in a Community Improvement Plan process which is described in a separate report to UEDC by City Planning.

Film Industry concerns about the rail relocation design have been addressed by a minor design revision and we have committed to maintaining their truck access during construction. Concerns about the rail relocation design expressed by commuters and area residents need to be addressed in the context of a comprehensive study of rail service delivery options in the Port Area that involve relocating the rail lines outside of the Lake Shore boulevard corridor.

Origin-destination information on users of the east portion of the F.G. Gardiner Expressway was obtained during the E.A. study and is summarized in this report.

Contact Name:

Kathleen Llewellyn-Thomas

Director of Engineering, Districts 1&2

392-8590

JPK/jc

Appendix No 3:

F.G. Gardiner Expressway East Dismantling Project

Air Quality Impacts

November 27, 1998

TO:Urban Environment and Development Committee

FROM:Dr. Sheela V. Basrur, Medical Officer of Health

SUBJECT:F.G. Gardiner Expressway East Dismantling Project - Air Quality Impacts

WARD: Councillors Jack Layton and Pam McConnell, Ward 25 - Don River

and Councillors Sandra Bussin and Tom Jakobek, Ward 26 - East Toronto

Purpose:

To report on the potential air quality impacts associated with rehabilitating or dismantling the Gardiner Expressway East.

Source of Funds:

The funds required to conduct an air quality monitoring study to be made available from the proposed 1999-2003 Capital Works Program for the Transportation Services Division (C-TR-026).

Recommendations:

It is recommended that:

1. the Commissioner of Works & Emergency Services, in consultation with the Medical Officer of Health and the Commissioner of Urban Planning and Development Services, develop and conduct an ambient air quality monitoring study for the area bounded by Queen St. to the north, the Don Roadway to the west, Commissoners Street to the south and Leslie St. to the east, in order to gain a more accurate estimate of the air quality impacts associated with both options;
2. the Commissioner of Works & Emergency Services, the Medical Officer of Health and the Commissioner of Urban Planning and Development Services, report jointly to the Urban Environment and Development Committee on the results of the air quality monitoring study no later than May 1999;
3. the Commissioner of Works & Emergency Services, in consultation with the Medical Officer of Health and the Commissioner of Urban Planning and Development Services, identify and investigate the feasibility of implementing measures that will mitigate the negative impacts to the air quality;
4. this report be forwarded to the Board of Health for information.

Background:

At its meeting of July 13, 1998, the Urban Environment and Development Committee (UEDC) deferred consideration of a number of reports and communications regarding the demolition of the F.G. Gardiner Expressway East (FGG) and requested that the Medical Officer of Health review the air quality issues and submit a report to the UEDC October 5, 1998 meeting regarding:

• the short and long-term impacts of dismantling or rehabilitating the FGG on the health of children in the demolition area, including the impact on distribution of particulate matter;
• such report to be presented to the local community for its review and approval prior to consideration by the UEDC.

The results, conclusions and recommendations outlined in this report were conveyed to the local community at a public meeting held in Ward 25 on November 9, 1998.

Discussion:

General:

The dismantling of the FGG contributes to broad city building objectives by providing "greening" opportunities, establishes better access to the waterfront, and creates better connections to existing recreational corridors. Improvements to the local community such as minimizing traffic impacts and improving pedestrian safety have been identified. These improvements can be implemented through the Community Improvement Plan process. This process is discussed in the report prepared by the Commissioner of Urban Planning and Development Services.

The community surrounding the FGG has been concerned for many years about the health impacts of a number of existing and proposed projects in the area. There are a number of operations in or near this community that have an impact on the overall air quality including large operations such as the Main Treatment Plant and smaller operations such as autobody shops. Emissions from vehicles are another important source of air contaminants in this neighbourhood. Throughout the consultation process for the proposal to dismantle the FGG, the community has expressed concern about the impact that dismantling could have on air quality.

Staff from the Environmental Protection Office, Toronto Public Health have reviewed the following documents in the preparation of this report:

• F.G. Gardiner Expressway East Environmental Assessment and Preliminary Design Study: Environmental Study Report (November 1996)

• F.G. Gardiner Expressway East Environmental Assessment and Preliminary Design Study: Air Quality Impact Assessment (November 1996)

• Air Quality Assessment, F.G. Gardiner Expressway Re-Development. Rowan Williams Davies & Irwin Inc. (October, 1998).



• In 1996, an Air Quality Impact Assessment was conducted as part of the Environmental Assessment and the Preliminary Design Study for the Gardiner Expressway East Dismantling Project. The purpose of the study was to quantify the total predicted pollutant loadings due to vehicular emissions for various roadway alternatives, and to rank the alternatives based on their relative pollutant contributions. The study concluded that pollutant contributions were greater for the dismantling option than for the rehabilitation option. It was predicted that the dismantling option would increase the daily average loading (tonnes) of carbon monoxide (CO) by 1 percent and decrease nitrogen oxide (NOx) by 1 percent. However, when peak traffic hours were examined, the CO and NOx loadings were predicted to increase by twelve and two percent, respectively. The environmental assessment process does not require the evaluation of exposure to the impacted community.

In order to assess community exposure to airborne pollutants associated with rehabilitating or dismantling the FGG, the Departments of Works and Emergency Services, in consultation with Toronto Public Health, retained environmental consultants to conduct dispersion modelling for CO, NOx, small diameter particulate matter (PM₁₀) and total suspended particulate matter (TSP). Exposure was estimated by comparing the predicted exposure levels to environmental limits set by the Ontario Ministry of Environment (MOE). UEDC specifically requested the assessment of the distribution of particulates, therefore, both TSP and small diameter particulate matter (PM₁₀) were evaluated.

For both the rehabilitation and dismantling options, worst-case dispersion modelling of peak traffic vehicular emissions was conducted for the study area bounded by Queen St. E, Leslie St., Commissioners St., and the Don Roadway. In addition, the air quality impact of the construction phase for both options was examined because it is recognized that construction can increase the amount of particulates in the local area.

A number of variables were taken into account in the modelling, including:

1. vehicle mix (trucks and cars);
2. vehicle speed;
3. queuing at signalled intersections, and;
4. wind speed, wind direction, atmospheric stability and temperature.

The findings of the dispersion calculations were generally consistent with the findings of the initial air quality impact analysis conducted in 1996. The concentrations of each pollutant - CO, NOx, TSP, PM₁₀ - are predicted to be higher for the dismantling option when compared to the rehabilitation option.

When the predicted concentrations are compared to provincial criteria, CO and NO_x levels are below the MOE Ambient Air Quality Criteria (AAQC) for both options. However, the predicted PM₁₀ and TSP levels exceed the AAQC by approximately 2 times under the rehabilitation option and by 3 times for the dismantling option. Levels are predicted to be highest along the Gardiner and Lakeshore roadways and are predicted to fall off to acceptable levels within 50 and 100 metres under the rehabilitation option and within 50 and 200 metres under the dismantling option. Although the impact area is primarily commercial/industrial in nature, the area impacted by the dismantling option also captures some residential housing.

It is predicted that significant amounts of PM₁₀ and TSP would be released during the construction phase for either option. However, mitigative measures such as dust control can reduce the levels of PM₁₀ and TSP by approximately 90 percent.

The predicted values represent the pollutant contributions associated with roadways in this community. Other pollutant sources known to be present in this area could not be included in the predictions because background ambient air quality data for this community is not available (except for TSP). The closest location for which ambient air quality data is available is a MOE monitoring site located at Bay St. and Grosvenor St. The relative pollutant contributions from the FGG and Lakeshore Road needs to be assessed within the context of the overall exposure to pollutants in the community. Therefore, it is recommended that the City develop a local, community-based ambient air quality monitoring study. This data will be used to develop a more accurate assessment of the air quality implications associated with both the dismantling and rehabilitation options for the FGG.

Conclusions:

In the last decade, epidemiological studies have clearly demonstrated the impact of poor air quality on human health. The health effects that have been generally observed range in severity from minor irritation of the nose and throat to worsening of heart and lung conditions which may lead to hospitalization and premature death. Poor air quality can be especially harmful to children, seniors, pregnant women, people with heart and lung conditions and smokers.

This community has been concerned for a number of years about the air quality impacts of existing local industrial operations and emissions from transportation sources. Transportation planning needs to consider air quality impacts on human health and attach priority to modes of transportation that provide the greatest overall benefit to the local airshed and community. To date, the steps taken to assess the air quality impacts associated with the FGG project include the phased assessment completed in 1996 and 1998. An ambient air quality monitoring study is needed to better characterize overall community exposure to airborne pollutants and support a more accurate analysis of the impacts associated with either option of the Gardiner project. This information will allow the City to more accurately assess the human health impacts associated with the various options for the FGG.

Some mitigative opportunities, such as tree walls, may not be possible if the FGG is rehabilitated. The effectiveness and feasibility of implementing mitigative measures such as regular street washing and tree walls, require further investigation.

Air quality is one of many issues that must be considered when selecting an option for the FGG. As discussed in the report by the Commissioner of Urban Planning and Development Services, there are "city building" opportunities associated with dismantling the FGG. In addition, if City Council approval for a Community Improvement Plan is obtained, there could be opportunities to minimize traffic impacts, improve pedestrian personal safety and enhance the physical amenity of the neighbourhood.

Contact Name:

Franca Ursitti, Research ConsultantSteve McKenna, Acting Manager

Environmental Protection OfficeEnvironmental Protection Office

Toronto Public Health Toronto Public Health

Community & Neighbourhood ServicesCommunity & Neighbourhood Services

TEL: 416-392-6788TEL: 416-392-6788

FAX: 416-392-7418FAX: 416-392-7418

email: fursitti@city.toronto.on.caemail: smckenna@city.toronto.on.ca

Dr. Sheela V. Basrur

Medical Officer of Health