(City Council on April 16, 1998, amended this Clause by adding thereto the following:

"It is further recommended that:

(1) funds for remedial repairs for the F.G. Gardiner Expressway east of the Don Roadway (Gardiner East) be included in the 1998 Capital Budget;

(2) the Commissioner of Works and Emergency Services be required to meet with the objectors, including TEDCO, the Toronto Harbour Commission, residents west of Carlaw Avenue, the Beaches Triangle Residents Association and the film community, to decide whether there is a compromise which can be found;

(3) the Commissioner of Works and Emergency Services be requested to submit further reports to the Urban Environment and Development Committee on:

(a) options for the dismantling of the Gardiner East which would remove or by-pass the traffic light at Lake Shore Boulevard East and Carlaw Avenue; such report to be submitted to the Committee at the same time as the contract for Phase I of the dismantling of the Gardiner East is before the Committee for awarding, and the Commissioner of Works and Emergency Services confirm, at that time, that the Phase I work (to prepare detour routes and to move railway tracks) would be required for any of the dismantling options; and

(b) the safety and operational impacts of the rail relocation on local streets and communities, such report to be before the Committee at the time of the Phase I contract award;

(4) the Commissioner of Works and Emergency Services be requested to conduct a cost analysis for the rail underpass in the design consideration of the Gardiner East dismantling and report thereon to the Urban Environment and Development Committee; and

(5) a Construction Monitoring Committee be established which will meet regularly and more frequently when urgent items occur; and this Construction Monitoring Committee include representatives from the local industries, including film, local residents and east end neighbourhoods, as well as interested Councillors or their delegates. This Monitoring Committee will focus on: noise reduction so that filming and communities will not be disrupted in any way; traffic flow; traffic infiltration; effective business traffic management; dust and any other items.")

(City Council on March 4, 5 and 6, 1998, deferred consideration of this Clause to the next regular meeting of Council to be held on Thursday, April 16, 1998, such Clause to be considered at 4:00 p.m. on the first day of the meeting.)

The Urban Environment and Development Committee recommends that:

(1) the dismantling of the eastern portion of the F. G. Gardiner Expressway continue as approved in accordance with the Environmental Assessment Study, with the modifications regarding public consultation as proposed in Recommendation No. (2) below;

(2) the Interim Functional Lead for Transportation be requested:

(a) in consultation with the Councillors in each of the affected Wards (including those east of Victoria Park Avenue), to initiate local public education meetings in order to disseminate detailed information, and to ensure full public participation, on the impact of the dismantling of the eastern portion of the F. G. Gardiner Expressway; such meetings to be held prior to the start of the construction stage of the dismantling project;

(b) to ensure that:

(i) at least two consultation meetings are held in each Ward under the direction of the local Councillors;

(ii) these consultations provide local residents with information about the justification for the demolition, the process of demolition and the impact of that process, the proposed plans for the final form of Lake Shore Boulevard East and access to the Gardiner Expressway, and the impact which that final form will have on the community, including noise, traffic patterns and safety;

(iii) the consultation provide an opportunity for public feedback on the design and implementation of the Gardiner Expressway demolition to optimally address community concerns;

(iv) the consultation include an opportunity for residents unable to attend public meetings to communicate in writing their concerns and ideas relating to the demolition of the Gardiner Expressway; and

(v) the East Beach Community Association and the Birchcliffe Community Association are invited to the public education meetings;

(3) the Interim Lead for Transportation be requested:

(a) to investigate possible methods of minimizing noise levels during the dismantling of the eastern portion of the F. G. Gardiner Expressway;

(b) to develop a full strategy for preventing traffic infiltration in the corridor, including infiltration into neighbourhoods at the former Greenwood Race Track and the neighbourhoods in the vicinity of Kingston Road, the Beaches and South Riverdale;

(c) to prepare a precise and detailed schedule to demonstrate in what ways and for what period various portions of the project route would be affected, including rail traffic;

(d) to investigate the feasibility of easterly and westerly extensions of the bicycle trails on Lake Shore Boulevard; and

(e) to conduct a thorough traffic impact study on:

(i) the east-west delays that will occur;

(ii) the north-south delays that will occur;

(iii) the introduction of traffic to the north of Lake Shore Boulevard between the Don River and Carlaw Avenue; and

(iv) the impact of traffic delays caused by increased rail use on the spur lines;

and report thereon to the Urban Environment and Development Committee;

(4) the following motion be referred to the Interim Lead for Transportation with a request that he submit a report thereon to the Urban Environment and Development Committee:

'Moved by Councillor McConnell, on behalf of Councillor Bussin:

"(3) that consideration of a stop-light at the intersection of Logan Avenue and Lake Shore Boulevard be abandoned, and that left-turn movements in all directions be prohibited at the aforementioned intersection."';

(5) the Interim Lead for Transportation be requested to review the two rail spurs which are not currently being utilized in order to determine whether the process for their abandonment can be commenced by the railway companies; and, further, that the City Solicitor be requested to investigate the City of Toronto's legal rights with respect to the closing of the aforementioned two rail spurs; and submit a joint report thereon to the Urban Environment and Development Committee;

(6) the City of Toronto make the creation of a plan dealing with the Gardiner/Lake Shore Corridor a priority and create a broad-based process to move the planning forward, including funding to undertake this work, subject to budgetary approval; and

(7) the Toronto Transit Commission be encouraged to examine, as part of the current servicing reviews, the Beaches express bus as a possible regular fare service in the morning and evening rush hours, using the Lake Shore Boulevard alignment, to encourage the use of public transit.

The Urban Environment and Development Committee reports, for the information of Council, having:

(A) recommended to the Special Committee to Review the Final Report of the Toronto Transition Team that:

(1) a Task Force on the Gardiner/Lakeshore Corridor be created (similar to the one currently in place at the former City of Toronto), including appropriate staff support and an operating budget;

(2) Councillors Altobello, Ashton, Bussin, Jakobek, Layton and McConnell be appointed to such Task Force; and

(3) the Terms of Reference for the Task Force include the supervision of the detailed planning and public consultation related to the F. G. Gardiner Expressway East Dismantling Project; and

(B) requested the Interim Lead for Transportation to submit a report directly to Council, for consideration with this matter at its meeting scheduled to be held on March 4, 1998:

(1) with further detailed costs for the rehabilitation of the eastern portion of the F. G. Gardiner Expressway;

(2) with respect to the approximate figure of $1 million which would have to be spent on rehabilitation of the eastern portion of the F. G. Gardiner Expressway, should the dismantling project be deferred for one year; and

(3) on the cost of moving the railway line to the north, the building of a bicycle path or walkway and the clean-up of the Lake Shore Boulevard route, in the event that the eastern portion of the Gardiner Expressway remains in place.

The Urban Environment and Development Committee submits the following report (January 20, 1998) from the Interim Functional Lead for Transportation:

Purpose:

The purpose of this report is to provide an update on the status of the F. G. Gardiner Expressway East Dismantling Project and to provide some background on the origins of this project.

Recommendation:

It is recommended that this report be received for information.

Background:

The Urban Environment and Development Committee on January 12, 1998, had before it the following communications:

(i) (October 3, 1997) from the Assistant City Clerk of Toronto advising that the Council of the City of Toronto on September 22 and 23, 1997, amended and adopted Clause No. 1 of Report No. 8 of The Economic Development Committee, entitled "Economic Benefits of the Dismantling of the Gardiner Expressway"; and, in so doing:

(1) recommended that the Council of the new City of Toronto make the creation of a plan dealing with the Gardiner/Lakeshore Corridor a priority and create a broad-based process to move the planning forward, including funding to ensure this work;

(2) recommended that a Task Force on the Gardiner/Lakeshore Corridor, similar to the one presently in place at the City of Toronto, be created by the new City of Toronto, including appropriate staff support and an operating budget;

(3) requested the new City of Toronto Council to ensure full public participation on the impact of dismantling of the Gardiner Expressway, by instituting full public meetings in the community east of Leslie Street; and

(4) reiterated the vital importance of the Lakeshore/Gardiner Corridor to the GTA's economy, and requested that every possible effort be made to ensure that traffic capacity not be lost in the transition period if and when the Gardiner Expressway is removed.

(ii) (January 9, 1998) from Councillor Tom Jakobek, Toronto - East Toronto, requesting the Urban Environment and Development Committee to defer consideration of the communication referred to in (i) above to the next meeting of the Committee in order to allow deputations thereon from the community.

The Urban Environment and Development Committee:

(1) deferred consideration of the communication (October 3, 1997) from the Assistant City Clerk of Toronto until its next meeting, scheduled to be held on February 9, 1998;

(2) requested the Interim Functional Lead for Transportation to submit a report thereon to the February 9, 1998, meeting of the Urban Environment and Development Committee, and to make a brief presentation at such meeting regarding the dismantling of the eastern portion of the F. G. Gardiner Expressway to the Committee; and

(3) recommended to Council that the existing Task Force on the Gardiner/Lakeshore Corridor be encouraged to continue to meet pending the outcome of the review of its mandate and composition by the Special Committee to Review the Transition Team's Final Report.

The F. G. Gardiner Expressway between the Don Valley Parkway and Leslie Street was built in 1964 and 1965 through the eastern waterfront area, which generally consists of industrial and port uses. Originally planned as the Scarborough Expressway, it was to link the Gardiner Expressway to Highway No. 401 and via the East Metro Freeway to connect to Highway No. 407. Built as an elevated expressway, the substructure consists of reinforced concrete bents (columns and lateral beams), with the superstructure comprised of steel girders supporting a concrete deck and an asphalt running surface. The deck width can accommodate a six-lane cross-section, although it has only operated in a four or five-lane configuration. The expressway ends at Leslie Street in a ramp configuration designed at the time as a temporary terminus.

Over the years, traffic usage combined with the age of the facility and its rate of deterioration have created the need to undertake extensive rehabilitation of the Gardiner Expressway. Major repairs to the elevated portion of the Expressway west of the Don Valley Parkway have been ongoing since 1979. To date, little rehabilitation work has been carried out on the section of the Expressway east of the Don Valley Parkway. This is because of the relatively light traffic volumes on this portion of the Expressway compared to the portion west of the Don River which carries over twice the amount of traffic. The 20-Year F. G. Gardiner Expressway Rehabilitation Program, prepared in 1995, proposed that deck repairs be carried out between 1995 and 1998 and concrete bent repairs follow in years 1999 through 2002 on the Gardiner Expressway east of the Parkway. In 1995, deck and bent repairs were undertaken between the Don Valley Parkway and Saulter Street at a cost of $4.35 million.

During consideration of the Transportation Department's 1996-2000 Capital Works Program in early 1996, which included a continuation of the rehabilitation of the elevated expressway, the Metropolitan Toronto Planning and Transportation Committee requested a report on whether the rehabilitation of the Gardiner Expressway east of the Don Valley Parkway should be continued or whether dismantling should be considered. In response, a review was undertaken and its findings were presented at the March 6, 1996 Planning and Transportation Committee and adopted by Metropolitan Council on March 27, 1996. Based on the work carried out as part of the review, including transportation assessments and a cost comparison of the rehabilitation and dismantling options, the Transportation Department recommended that the east section of the Expressway be dismantled and new ramps to and from Lake Shore Boulevard be constructed. Given that this recommendation was based on a preliminary review, Council authorized the Department to undertake an Environmental Assessment (EA) and Preliminary Design Study to assess all possible alternatives in greater detail and to consult with stakeholders.

The EA Study was initiated in April of 1996 and completed in November of 1996. The results of the study indicated that the construction of new access ramps on the east side of the Don River and the dismantling of the existing structure from the new ramps to Leslie Street was the preferred option. The findings of the study were endorsed on December 9 and 10, 1996, by the Council of the City of Toronto.

At its meeting held on December 18, 1996, the Council of the Municipality of Metropolitan Toronto adopted, as amended, Clause No. 1 of Report No. 18 of The Planning and Transportation Committee, entitled "F. G. Gardiner Expressway East Environmental Assessment and Preliminary Design Study". In so doing, the Metropolitan Council endorsed the recommendations of the EA Study, authorized the Commissioner of Transportation to file the Environmental Study Report (ESR), and authorized the Commissioner of Transportation to undertake the dismantling of the east portion of the F. G. Gardiner Expressway as described in the ESR, subject to obtaining final Environmental Assessment approval.

On April 14, 1997, formal notification was received from the Minister of Environment and Energy that the objections to the Environmental Study Report for the F. G. Gardiner Expressway East Environmental Assessment and Preliminary Design Study had been denied, effectively providing Environmental Assessment approval to the project.

Discussion:

The following sections describe the approved design, why this design was selected, how the public was consulted, and the present status of the project.

The Approved Design:

The approved design involves dismantling the F. G. Gardiner Expressway from a point 250 metres east of the Don River, easterly to Leslie Street, and that new ramps to and from Lake Shore Boulevard be constructed. The attached figure labelled Exhibit 1.1 depicts the approved design and the following points highlight the main features:

(i) removal of 1 280 metres of elevated expressway;

(ii) a new two-lane entrance ramp starting at Bouchette Street to meet the existing travelled lanes of the F. G. Gardiner Expressway about 250 metres east of the Don River;

(iii) a new two-lane exit ramp leaving the existing F. G. Gardiner Expressway approximately 250 metres east of the Don River and entering Lake Shore Boulevard just east of Bouchette Street;

(iv) Lake Shore Boulevard narrowed to two lanes each way from east of the Don Roadway to west of Bouchette Street to accommodate the new ramps;

(v) Lake Shore Boulevard eastbound widened to four lanes from Bouchette Street easterly to the approach to Carlaw Avenue to accommodate traffic exiting the F. G. Gardiner Expressway;

(vi) Lake Shore Boulevard westbound widened to four lanes from immediately east of Bouchette Street easterly to Carlaw Avenue to accommodate traffic entering the F. G. Gardiner  Expressway; and

(vii) other improvements include relocation of the rail lead from the median of Lake Shore Boulevard to the north boulevard, landscaping, provision of an interim bicycle facility and upgrading of the Carlaw Avenue and Leslie Street intersections with Lake Shore Boulevard.

In response to the stakeholder input received on the design, a number of minor modifications have been made to the recommended design. These changes, described later in this report, do not change the original conclusions with respect to cost and feasibility. Metropolitan Council also requested the Commissioner of Transportation to report during the detailed design process on the feasibility of realigning the Cherry Street and Lake Shore Boulevard East intersection as part of this project. A feasibility study has been initiated and a report will be submitted to the Urban Environment and Development Committee in the spring of 1998. However, to date no plans are in place to include any improvements at this intersection as part of the dismantling project.

Analysis and Evaluation of Alternative Designs:

A long list of alternatives was developed to a general level of detail so that basic characteristics and distinguishing features could be identified. From this, four alternatives were evaluated in greater detail according to three factors:

(a) urban character--socio-economic and natural environment;

(b) transportation service--route travel times and intersection levels-of-service based on existing traffic volumes plus future development traffic; and

(c) 50-year life-cycle cost expressed as a present value.

A brief description of the characteristics of the four alternatives follows:

Alternative 1: Rehabilitate the Existing Facility:

This alternative, considered as the base alternative, would involve the maintenance of the existing infrastructure as outlined in the 20-Year Rehabilitation Program. The F. G. Gardiner Expressway and Lake Shore Boulevard would remain in their present form. As a result, the current morning westbound travel time of five minutes and evening eastbound travel time of six minutes from Coxwell Avenue to Jarvis Street along Lake Shore Boulevard and the Gardiner Expressway would not change. The present value of the 50-year life-cycle cost of this alternative was estimated at $48 million.

Alternative 2: Rehabilitate the Existing Facility; Upgrade the Leslie Street Interchange:

This alternative is similar to 1(a) with the addition of a new ramp in the westbound direction over Leslie Street to resolve the existing traffic problems at the Leslie Street/Lake Shore Boulevard intersection in the morning rush hour. This improvement would decrease the morning westbound travel time to three minutes from Coxwell Avenue to Jarvis Street and leave the evening eastbound travel time at six minutes. The estimated present value of the 50-year life-cycle cost of this alternative was $54 million.

Alternative 3: Dismantle F. G. Gardiner Expressway;

Replace with New Access Ramps East of the Don River ("Ramps East"):

This option would involve the dismantling of 1 280 metres of the existing Expressway from approximately Saulter Street to its current terminus at Leslie Street. New ramps to and from Lake Shore Boulevard would be built approximately 250 metres east of the Don River and merge with Lake Shore Boulevard in the median. As part of this alternative, the existing rail lead from Booth Avenue to Carlaw Avenue would be moved from the median thus eliminating shunting of trains across Lake Shore Boulevard. Improvements would also be provided at Lake Shore Boulevard intersections with Carlaw Avenue and Leslie Street. The estimated morning travel time westbound from Coxwell Avenue to Jarvis Street is 5.5 minutes, while the evening eastbound travel time is seven minutes. The estimated present value of the 50-year life-cycle cost of this alternative was $34 million.

Alternative 4: Dismantle F. G. Gardiner Expressway;

Replace with new Access Ramps West of the Don River ("Ramps West"):

Two options were developed for this alternative. Both options include dismantling of 1 740 metres of the Expressway east of the Don Valley sweep. New ramps to and from Lake Shore Boulevard would be constructed between Cherry Street and the Don Roadway. The new ramps would be built adjacent to the outside of the existing elevated structure and curve beneath the structure to merge with Lake Shore Boulevard. The main difference between the two options is the location of Lake Shore Boulevard and its intersection with Cherry Street. The first option, Option A, includes relocation of Lake Shore Boulevard to follow the alignment of the Expressway east of Cherry Street. Cherry Street is also realigned north of the Keating Channel, consolidating the existing two Cherry Street intersections into one. The second option, Option B, leaves the Lake Shore Boulevard/Cherry Street intersection as it is today. Construction of the ramps for both options would require relocation of several Gardiner Expressway columns. The morning westbound travel time associated with this alternative is six minutes, whereas the evening eastbound travel time increases to 10.5 minutes. The estimated present value of the 50-year life-cycle cost for Option A was $37 million and Option B was $35 million. Under both options, the weaving distance between the new ramps and the existing Jarvis Street interchange would be substandard. The interaction of vehicles entering and exiting the freeway in a restricted area would likely result in an increased number of motor vehicle collisions.

In evaluating the alternatives with respect to urban character, the criteria which were taken into consideration include the barrier effect of both the elevated Expressway and Lake Shore Boulevard, the effect on pedestrian and cyclist circulation, the impact on recreational facilities and the change in air quality and noise. From an urban character perspective, both dismantling alternatives were favoured over the rehabilitation alternatives.

Overall, the evaluation indicated the "Ramps East" alternative as the preferred design. The major factors that contributed to the selection of this design include its lower cost compared to all other alternatives, the improved safety relative to the "Ramps West" alternative, the improvement of the urban character of the Lake Shore Boulevard East corridor, and the elimination of the traffic congestion problems that are currently experienced in accessing the westbound F. G. Gardiner Expressway at Leslie Street during the weekday morning peak period.

From a cost perspective, the financial analysis done for this study concluded that dismantling the eastern section of the F. G. Gardiner Expressway would yield a life-cycle cost savings of $14 million (net present value, 1996 dollars) when compared to the rehabilitation over a 50-year time horizon.

Public Participation:

Public involvement was an integral part of the study process for the F. G. Gardiner Expressway East EA and Preliminary Design Study. The public contact requirements of the Class Environmental Assessment for Municipal Road Projects, the environmental planning process under which the EA Study was conducted, were met and surpassed. Given the significance of the project and the diverse interests contained within the study area, a specialized public participation program was developed. The program was "multi-layered" to ensure that all interested parties were given an opportunity to provide input into the study process. Public Open Houses and Workshops were held for members of the general public; workshops were held for four specific interest groups; and regulatory agencies were consulted early in the study.

A Notice of Study Commencement was the first form of contact with the general public. Notices were placed in the Toronto Star and the East Toronto Community News for City of Toronto Wards 8 and 9 and brochures were mailed to property owners within the area bounded by Queen Street East, Woodbine Avenue, the Lake Ontario shoreline, and Jarvis Street (approximately 5,500 addresses). Through this initial mailing and subsequent public meetings, a mailing list of approximately 350 individuals was compiled. These individuals were notified of all opportunities for public involvement in the EA Study, including the date that the recommendations of the EA Study were to be considered by the Metro Planning and Transportation Committee. Two Study Status Reports were also sent to all individuals on this mailing list.

Public Open Houses and Workshops were held at two key decision points during the EA Study over a total of five days. The locations of these public forums were split between the South Riverdale area and the Beaches area. A total of approximately 125 individuals attended these public forums. Generally speaking, Beaches residents were supportive of rehabilitation while South Riverdale residents were in favour of either the "Ramps East" or "Ramps West" dismantling options.

Metro Transportation's Road Information Line was also used as a means of contacting the general public. Two specific program numbers were dedicated to the EA Study: one program number provided callers with general information regarding the project; and the second provided details on dates, times and locations of upcoming public meetings. Over the course of the EA Study a total of 254 calls were received.

As indicated above, workshops were held with four specific interest groups. These interest groups are as follows:

(a) the Gardiner-Lake Shore Task Force;

(b) the Task Force to Bring Back the Don;

(c) the South East Industrial Advisory Committee and the South East Toronto Industrial Awareness Organization (SETIAO/SETIAC); and

(d) various environmental interest groups. The groups invited include the following:

(i) Environmentalists Plan Transportation;

(ii) Ontario Environment Network;

(iii) Federation of Ontario Naturalists;

(iv) Metropolitan Cycling and Pedestrian Committee;

(v) Citizens for a Safe Environment;

(vi) Toronto Field Naturalists Club;

(vii) Citizens for a Lakeshore Greenway;

(viii) Friends of the Spit;

(ix) Transportation Options;

(x) Conservation Council of Ontario;

(xi) Better Transportation Coalition;

(xii) rideTOgether; and

(xiii) Transport 2000.

Two meetings were held with each of the above four specific interest groups. The material presented to these groups was the same as that presented to the general public. The Gardiner-Lake Shore Task Force, the Task Force to Bring Back the Don and SETIAO/SETIAC all supported the "Ramps East" alternative. The various environmental interest groups generally supported the "Ramps West" alternative.

Present Status and Future Schedule:

As indicated in the "Background" section of this report, Environmental Assessment approval for this project was obtained in April 1997. The process of preparing a detailed design and construction staging plan in preparation for the tendering of the demolition and construction contracts began shortly thereafter with the assistance of a multi-disciplinary consultant team, including structural and road design engineers, landscape architects, an artist, and communications consultants.

The general public, area business representatives and specific interest groups have been involved during the detailed design process through a Design and Construction Liaison Group (DCLG). Participants in this DCLG were solicited using the mailing list compiled during the EA Study. The DCLG has been divided into two forums: a Business and Industry Forum which meets during business hours, and a Public Forum which meets during weekday evenings. The role of the DCLG is to review all aspects of the dismantling project and provide timely advice and recommendations from a community perspective. To date, the DCLG has been successful in assisting Transportation Department staff and the consulting team in developing the design and construction staging plans in a way that is beneficial to the community and to the project itself. Seven meetings have been held to date by the full DCLG as well as numerous sub-group meetings on specific design issues.

The detailed design of the dismantling project is progressing to a scheduled awarding of the first contract(s) in July 1998. Through the detailed design process to date, including input from the DCLG, several enhancements to the approved EA Study design have been developed. The key enhancements are as follows:

(1) the duration of construction has been reduced from five years to three years;

(2) the duration of the detouring of Lake Shore Boulevard East traffic to Commissioners Street has been reduced from four years to 18 months;

(3) the motor vehicle detour route has been changed to avoid impacting traffic operations on Cherry Street;

(4) a detour route for cyclists during construction has been added;

(5) the rail lead between Carlaw Avenue and Leslie Street will be relocated from the median to the north side of Lake Shore Boulevard East. This removes shunting operations from the middle of the Lake Shore Boulevard East and Carlaw Avenue intersection and permits the provision of a sidewalk on the south side of Lake Shore Boulevard East without purchasing private property;

(6) the below grade concrete footings will not be removed when the columns of the F. G. Gardiner Expressway are removed; and

(7) a public art component for the project is being developed in consultation with the DCLG and municipal review agencies.

The members of the DCLG generally consider that these enhancements have improved the overall project. The reduction in construction and detouring durations, in particular, have reduced the concerns of the business members of the DCLG on the impacts to their operations during construction.

The capital cost estimate of the project is being refined through the detailed design process, including the effects of the above enhancements. Items (4), (5) and (7) above are additional costs while item (6) is a cost-saving. Items (1) and (2) will not increase the overall capital cost of the project but they will increase the yearly cash flow requirements. A preliminary cost estimate for the dismantling project based on the work completed to date has determined that the 50-year life-cycle cost of the project has not changed from the $34 million estimate reported in the EA study. However, the detailed design process is not yet complete and, therefore, the capital cost estimate for the project may be further refined.

The 1998-2002 Capital Works Program for the Transportation Department includes $7.9 million for the F. G. Gardiner Expressway East Dismantling Project in 1998. This will cover the cost of joining together 100 metres of the Expressway deck to permit detouring between the eastbound and westbound lanes, the relocation of the railway leads on Lake Shore Boulevard East, the relocation of utilities along Lake Shore Boulevard East, and the preparation of the detour route along Commissioners Street. Contract(s) for this work are planned to be awarded in July 1998.

Summary:

The F. G. Gardiner Expressway East Environmental Assessment and Preliminary Design Study, completed in November 1996, recommended that the eastern portion of the F. G. Gardiner Expressway be dismantled and new access ramps be constructed east of the Don River. From a life-cycle cost perspective, this design is less expensive ($34 million) than rehabilitating the existing Expressway structure ($48 million), it provides approximately the same level of transportation service and permits improvements to the urban character of the Lake Shore Boulevard East corridor. Metropolitan Council and the Council of the former City of Toronto endorsed the recommendations of this EA Study in December 1996. Environmental Assessment approval for the project was received in April 1997.

Since that time, detailed design has been proceeding in consultation with area residents and businesses and municipal review agencies. Several enhancements to the EA Study design have been developed through this process, which include a significant reduction in the duration of construction and associated traffic detours. The first contract(s) for the project are planned to be awarded in July 1998 and construction is scheduled to be complete by November 2000.

Contact Name and Telephone Number:

Ms. Kathleen Llewellyn-Thomas, Manager, Project Planning and Design,

392-8590, Fax: 392-4426.

The Urban Environment and Development Committee also submits the following communication (February 6, 1998) from Councillor Tom Jakobek, East Toronto:

As you may be aware, the Gardiner Expressway has been under reconstruction for several years. However, most of the Expressway has been repaired and is providing a route for over 156,000 vehicles per day.

The demolition of the east leg of the Expressway will result in the traffic being subject to two or three traffic signals, three railway spurs and a reduction of speed from 90 kilometres per hour to 60 kilometres per hour. Most of the industrial and commercial property owners object to the proposed demolition.

In addition, over 1,000 Scarborough and East Toronto residents have signed petitions objecting to the demolition.

Therefore, I would recommend that:

(1) the Interim Functional Lead for Transportation be requested to finalize restoration costs for the Gardiner Expressway east of the Don River, to be included in the 1999 Capital Budget;

(2) the Interim Lead also be requested to consult with local representatives and citizens to ensure that the ground level road is made more accessible with a new public sidewalk/walkway, trees, bike lane and possible relocation of the rail line; and

(3) staff report on the feasibility of having an international proposal call for the burying of the Gardiner Expressway.

The Urban Environment and Development Committee also submits the following Committee Transmittal (February 3, 1998) from the City Clerk:

Recommendation:

The Metropolitan Cycling and Pedestrian Committee on February 2, 1998, recommended to the Urban Environment and Development Committee, and Council, the adoption of the report dated January 19, 1998, from Mr. Jack Becker, Chair, Network Planning Sub-Committee, respecting the F. G. Gardiner Expressway East Dismantling Project.

Purpose:

The F. G. Gardiner Expressway East Dismantling Project will be reviewed by the Urban Environment and Development Committee on Wednesday, February 9, 1998, with deputations being heard at 10:00 a.m. This former Metropolitan Cycling and Pedestrian Committee's support and participation at the Urban Environment and Development Committee's meeting will need to be finalized. The motions contained in this report address this matter and are being put forth for the Committee's consideration.

Recommendations:

It is recommended that the Metropolitan Cycling and Pedestrian Committee recommend to the Urban Environment and Development Committee, and Council, that it support:

(1) the reduction in the number of lanes on the F. G. Gardiner Expressway from the Don River to Leslie Street by bringing the Expressway to ground elevation for this section as:

(a) it is the lowest long-term cost solution to rectifying the deteriorating elevated Expressway;

(b) ongoing operations and maintenance requirements will be reduced;

(c) it is in line with the Official Plan to improve the quality of the environment for the City;

(d) it is in line with the Official Plan's desire to realign the transportation modes usage, de-emphasising the use of private motor vehicles;

(e) it supports Canada's commitments at the recent Kyoto resolutions; and

(f) it better matches forecasted motorized vehicle usage for this road with physical road facilities;

(2) the implementation of the road humanization recommendations developed by the Toronto Transportation Department and its consultants in concert with the F. G. Gardiner Expressway East Dismantling Project Design and Construction Liaison Group, which includes bicycle paths, sidewalks, road art, and green naturalization initiatives which, besides contributing to the improvement of air quality, should also contribute to reduction of the speeding problem that faces the City;

(3) recognizing that this section of Lake Shore Boulevard is also a transportation corridor, the extension of the proposed bicycle path:

(a) to the east on the boulevard on the north side of Lake Shore Boulevard to Coxwell Avenue and then on the boulevard on the west or east side of Coxwell Avenue to Eastern Avenue/Queen Street with linkage on Lake Shore Boulevard at Coxwell Avenue to the Martin Goodman Trail on the south side, using an exiting underpass if possible, thereby providing more efficient commuter cycling from the beaches and Scarborough to downtown and also relieving the over-capacity situation on the Martin Goodman Trail both for cyclists and pedestrians; and

(b) to the west connecting to the Don Trail (northbound) and to the existing bicycle path section that continues to Cherry Street and then to Parliament Street (downtown access); and

(4) the improvement of the Cherry Street/Lake Shore Boulevard intersection for pedestrians, cyclists, commercial vehicles and other motorized vehicles, recognizing the difficult lines of vision and other impediments to safe usage of this intersection.

Comments:

Significant progress has been made in the project to date and the Committee's support is needed at this time as the new Council addresses its support for the project.

Recommendations Nos. (3) and (4) were previously presented by this Committee to the former Metro Planning and Transportation Committee and supported by that Committee. The recommendations are being represented in the context of ongoing approval for this project.

Contact Person and Telephone Number :

Mr. Jack Becker, 203-1711.

The Urban Environment and Development Committee reports, for the information of Council, also having had before it the following communications:

(i) (October 3, 1997) from the Assistant City Clerk of Toronto advising that the Council of the City of Toronto on September 22 and 23, 1997, amended and adopted Clause No. 1 of Report No. 8 of The Economic Development Committee, entitled "Economic Benefits of the Dismantling of the Gardiner Expressway"; and, in so doing:

(1) recommended that the Council of the new City of Toronto make the creation of a plan dealing with the Gardiner/Lakeshore Corridor a priority and create a broad-based process to move the planning forward, including funding to ensure this work;

(2) recommended that a Task Force on the Gardiner/Lakeshore Corridor, similar to the one presently in place at the City of Toronto, be created by the new City of Toronto, including appropriate staff support and an operating budget;

(3) requested the new City of Toronto Council to ensure full public participation on the impact of dismantling of the Gardiner Expressway, by instituting full public meetings in the community east of Leslie Street; and

(4) reiterated the vital importance of the Lakeshore/Gardiner Corridor to the GTA's economy, and requested that every possible effort be made to ensure that traffic capacity not be lost in the transition period if and when the Gardiner Expressway is removed.

(ii) (February 9, 1996) from Councillor Sandra Bussin, East Toronto, submitting a Motion regarding the dismantling of the eastern portion of the F. G. Gardiner Expressway; the operative paragraphs of which Motion are as follows:

"NOW THEREFORE BE IT RESOLVED THAT the Urban Environment and Development Committee adopt and recommend to City Council that a consultation process be set up and funded by the City to inform and respond to the concerns of people of East Toronto before the construction stage of the dismantling project begins;

AND BE IT FURTHER RESOLVED THAT the consideration of a stop-light at the intersection of Logan Avenue and Lake Shore Boulevard be abandoned, and that left-turn movements in all directions be prohibited at Logan Avenue and Lake Shore Boulevard;

AND BE IT FURTHER RESOLVED THAT a full strategy for preventing traffic infiltration in the corridor be developed, including infiltration into neighbourhoods at the former Greenwood Racetrack and the neighbourhoods in the vicinity of Kingston Road, the Beaches and South Riverdale;

AND BE IT FURTHER RESOLVED THAT a precise and detailed schedule be developed to show in what ways and for what period various portions of the project route would be affected;

AND BE IT FURTHER RESOLVED THAT the Beaches express bus be examined as a possible regular fare service in the morning and evening rush hours, using the Lake Shore alignment to encourage public transit, and that the TTC be encouraged to investigate this proposal as part of the current servicing reviews."

(iii) (January 29, 1998) from Mr. John Ellis, President, Beach Triangle Residents Association, advising that the Beach Triangle Residents' Association (BTRA) Executive takes a very firm position in opposition to the proposal to demolish the Lake Shore overhead extension of the Gardiner Expressway; and that the BTRA Executive strongly encourages Council to oppose the notion of demolishing the Gardiner-Lake Shore overhead extension.

(iv) (February 4, 1998) from Mr. Erkki Pukonen, President and Chief Executive Officer, City of Toronto Economic Development Corporation (TEDCO), advising that, in spite of TEDCO's active participation in the Design and Construction Liaison Group, the Corporation has a continuing concern about the potential upset caused by the dismantling of the eastern portion of the Gardiner Expressway on businesses in the area; that, even with the improved detour, the Port Area businesses will have to cope with substantial delays due to a dramatic increase in traffic in the area; stating that TEDCO's efforts to renew the Port Area by unencumbering major parcels of land in the area for redevelopment could be seriously compromised by the disruption caused by the construction and increased traffic; further advising that the resulting condition of the Gardiner Expressway and Lake Shore Boulevard East does not address TEDCO's continuing concern about the barriers which the Gardiner poses, and will continue to pose, to access to the Port Area; and that, from TEDCO's standpoint, this project does not yield a substantial improvement to the transportation network in the area.

(v) (February 9, 1998) addressed to Mr. John Kelly, Planning and Design Engineer, City of Toronto Transportation Department, from Mr. Robert A. Howald, Executive Vice-President, City of Toronto Economic Development Corporation (TEDCO), advising that TEDCO has no objection to the relocation of the rail lines located in the centre of the Lake Shore Boulevard East road allowance to the north side, subject to confirmation from Toronto Terminal Railways that the relocation will not impair rail service to the Port Area and that it will be carried out at no cost to TEDCO.

(vi) (February 7, 1998) from Mr. Tim Gladney, President, Courier Broker Association of Toronto, expressing opposition to the demolition of the eastern portion of the Gardiner Expressway.

(vii) (February 9, 1998) from Mr. Ronald A. Kuipers, Board Member, Community Bicycle Network, expressing support for the Gardiner Expressway East Dismantling Project.

Ms. Kathleen Llewellyn-Thomas, Manager, Project Planning and Design, Transportation Department, made an overhead presentation to the Urban Environment and Development Committee in connection with the foregoing matter.

The following persons appeared before the Urban Environment and Development Committee in connection with the foregoing matter:

- Mr. Boris Mather, Vice-President, Citizens for a Lakeshore Greenway, and submitted a brief with regard thereto;

- Mr. Eli Ophek, Toronto Bay Group; and submitted a brief with regard thereto, as well as a petition bearing 44 signatures requesting that the eastern portion of the Gardiner Expressway be rehabilitated rather than demolished;

- Mr. James Alcock, Toronto;

- Mr. Kevin Walters, Toronto;

- Mr. John Wellner, Toronto Environmental Alliance, and submitted a brief with regard thereto;

- Mr. Jim Neff, Toronto;

- Mr. Peter Reble, Toronto, and submitted a brief with regard thereto;

- Mr. Ross Snetsinger, Chair, Rail Ways to the Future Committee, Transport 2000 Ontario; and submitted a brief with regard thereto, as well as copies of various articles extolling the use of public transit to reduce the effects of global warming;

- Mr. Wilfrid Walker, Member, Transport 2000 Ontario, and submitted a brief with regard thereto;

- Ms. Joan Doiron, Feet on the Street;

- Mr. Jack Becker, Toronto;

- Mr. Peter Lukas, Showline Studios, and submitted a brief with regard thereto;

- Ms. Karen Buck, Toronto; and submitted a brief with regard thereto;

- Mr. Alan Burke, Director, East Beach Community Association;

- Mr. Peter Smith, Community Coalition to Save McCleary Park, and Lakeside Area Neighbourhood Association;

- Ms. Elizabeth Borek, Lakeside Area Neighbourhood Association;

- Mr. David Hanna, Toronto;

- Ms. Catherine Nasmith; Co-Chair, Gardiner/Lake Shore Task Force;

- Mr. Erkki Pukonen, President and Chief Executive Officer, City of Toronto Economic Development Corporation;

- Councillor Tom Jakobek, East Toronto;

- Councillor Sandra Bussin, East Toronto; and

- Councillor Jack Layton, Don River.

(A copy of Exhibit 1.1, referred to in the foregoing report dated January 20, 1998, from the Interim Functional Lead for Transportation, has been forwarded to all Members of Council with the agenda of the February 9, 1998, meeting of the Urban Environment and Development Committee, and a copy thereof is also on file in the office of the City Clerk.)

(City Council on March 4, 5 and 6, 1998, had before it, during consideration of the foregoing Clause, the following report (February 25, 1998) from the Interim Functional Lead for Transportation:

Purpose:

To provide additional information to Council as requested by the Urban Environment and Development Committee regarding the F. G. Gardiner Expressway East Dismantling Project.

Recommendation:

It is recommended that this report be received for information.

Background:

The Urban Environment and Development Committee at its meeting of February 9, 1998, requested the Interim Lead for Transportation to submit a report directly to Council, at its meeting scheduled to be held on March 4, 1998:

(1) with further detailed costs for the rehabilitation of the eastern portion of the F. G. Gardiner Expressway;

(2) with respect to the approximate figure of $1 million which would have to be spent on rehabilitation of the eastern portion of the F. G. Gardiner Expressway, should the dismantling project be deferred for one year; and

(3) on the cost of moving the railway line to the north, the building of a bicycle path or walkway and the clean-up of the Lake Shore Boulevard route, in the event that the eastern portion of the Gardiner Expressway remains in place.

Discussion:

The information requested by the Committee is provided in the following three sections.

(1) Rehabilitation Costs:

If the F.G. Gardiner Expressway East Dismantling Project does not proceed, all structural elements of the eastern portion of the Expressway will require extensive rehabilitation to restore the facility to a safe operating condition. These elements include the superstructure (parapet walls, median barrier, concrete deck and asphalt running surface), the structural steel girders, and the concrete bents (vertical columns and transverse beams). The estimated costs to rehabilitate each of these elements are as follows:

Generally we would tender contracts for between $5 million and $7 million each year until the rehabilitation program is complete. The rehabilitation program as presented to the former Metro Council in 1996 had a duration of nine years. An accelerated rehabilitation program could involve spending up to $9 million each year, however, we could not spend more than $5 million in 1998 due to the lead time required for the preparation and awarding of contracts. The duration of an accelerated rehabilitation program is estimated to be six to seven years.

(2) Details of Emergency Repairs.

On the basis of a structural inspection completed in January of this year, we have concluded that the following work must be undertaken to ensure the safe operation of the elevated Expressway until it is removed from service at the beginning of the year 2000:

(1) repair of bearing seats and pier caps;

(2) isolated concrete deck repairs;

(3) strengthening or shielding of portions of the parapet walls; and

(4) removal of loose concrete from the underside of the deck and bents.

This work is estimated to cost $1 million and was budgeted for as part of the Dismantling Project. Any delays to the Dismantling Project schedule will require additional emergency repairs. The cost of these additional repairs would be determined through on-going structural inspections, but we anticipate that a one year delay would result in the need for a minimum of approximately $250,000.00 to be spent on emergency repairs in addition to the $1 million already identified.

(3) Details and Costs of Potential At-grade Modifications if the Expressway is not Dismantled.

Railway Relocation:

It would be feasible to relocate the railway line from the median of Lake Shore Boulevard to the north side of Lake Shore Boulevard if the Expressway structure remained in place, although it is not necessary to relocate the rail line if no modifications to Lake Shore Boulevard were to be considered. The cost of relocating the railway line is estimated to be $3.9 million plus the cost of purchasing a small parcel of private property at a price to be determined through negotiations.

Lake Shore Boulevard Rehabilitation:

The condition of the pavement on Lake Shore Boulevard varies between Leslie Street and the Don Roadway and, therefore, portions of the road require more extensive repairs than others. In general, however, the total cost of rehabilitating Lake Shore Boulevard under the Dismantling Project will be more costly because the eastbound lanes of Lake Shore Boulevard are being realigned, thus requiring more extensive construction.

If the elevated Expressway is not dismantled, and assuming that we do not then realign the eastbound lanes of Lake Shore Boulevard, the approximate total cost of rehabilitating Lake Shore Boulevard between Leslie Street and the Don Roadway would be $1.14 million.

Bicycle and Pedestrian Paths:

The cost of providing the combined bicycle/pedestrian path on the north side of Lake Shore Boulevard included in the Dismantling Project is estimated at $450,000.00. This assumes that the elevated structure is removed, the railway line is relocated from the median of Lake Shore Boulevard to the north side of Lake Shore Boulevard, and the eastbound lanes of Lake Shore Boulevard are shifted to the north. If the elevated structure remains, the feasibility of providing pedestrian and/or bicycle facilities on the north and south sides of Lake Shore Boulevard (and any major cost implications) are described below:

(a) North side of Lake Shore Boulevard:

(i) Between the Don Roadway and Booth Avenue, a sidewalk is feasible if the railway line is not relocated. If the railway line is relocated, a bicycle/pedestrian path would be feasible.

(ii) Between Booth Avenue and Carlaw Avenue, a sidewalk or a bicycle/pedestrian path is feasible if the railway line is not relocated. If the railway line is relocated, neither a sidewalk nor a bicycle/pedestrian path is feasible due to property constraints.

(iii) Between Carlaw Avenue and Leslie Street, either a sidewalk or a bicycle/pedestrian path is feasible whether or not the railway line is relocated. However, these facilities would have to be located on the north side of the railway line rather than beside Lake Shore Boulevard as is currently planned. In addition, due to the existing on-ramp to the Expressway at Leslie Street, it will be difficult to provide an appealing pedestrian environment.

(b) South Side of Lake Shore Boulevard:

(i) Between the Don Roadway and Logan Avenue it is feasible to install a sidewalk immediately beside the south curb of the Lake Shore Boulevard eastbound lanes without any other modifications.

(ii) Between Logan Avenue and a point approximately 240 metres west of Leslie Street, it would not be feasible to install a pedestrian and/or bicycle facility unless the railway line is relocated and the eastbound lanes of Lake Shore Boulevard are shifted to the north. The cost of the rail relocation is $3.9 million as previously noted. The shifting of the eastbound lanes would increase the rehabilitation costs of Lake Shore Boulevard by approximately $1 million as compared to the figure of $1.14 million quoted in a previous section of this report. It should be noted that there is an asphalt pedestrian path currently provided on the south side of Lake Shore Boulevard between Carlaw Avenue and a point approximately 150 metres east thereof. This path is provided on private property.

(iii) Between a point approximately 240 metres west of Leslie Street and Leslie Street, it would not be feasible to provide either a pedestrian or a bicycle facility on the south side of Lake Shore Boulevard if the Expressway is not dismantled unless private property is purchased. The location of the Expressway bents prevents the realignment of the eastbound lanes of Lake Shore Boulevard and there is insufficient property to provide a sidewalk beside the south curb of the road in its existing location.

Summary:

In the event that the F.G. Gardiner Expressway East Dismantling Project does not proceed, we will need to spend $50.34 million over the next five to ten years to rehabilitate the elevated structure to a safe operating condition. This cost is for structural rehabilitation only; it does not include any at-grade enhancements.

Approximately $1 million in emergency repairs are required to the existing structures to keep the facility operational until the planned closure at the beginning of the year 2000. This amount is part of the dismantling project budget. If a decision is made to delay the project, at a minimum, an additional $250,000.00 of emergency repairs would be required.

The relocation of the existing railway line located in the median of Lake Shore Boulevard to the north side of Lake Shore Boulevard is feasible if the Expressway structure is not dismantled. The cost of this relocation would be approximately $3.9 million plus property costs to be determined through negotiations. However, if no modifications are being considered for Lake Shore Boulevard other than simple rehabilitation, there is no compelling reason to relocate the railway line.

The cost of rehabilitating Lake Shore Boulevard between Don Roadway and Leslie Street, assuming that the alignment and width remains the same as today, is $1.14 million.

The cost of providing the combined pedestrian/bicycle facility on the north side of Lake Shore Boulevard and the pedestrian facility on the south side of Lake Shore Boulevard included in the Dismantling Project is approximately $450,000.00. To provide these facilities with the Expressway structure still in place would require the following additional elements:

(1) the relocation of the railway line for $3.9 million plus property costs to be determined through negotiations;

(2) the realignment of the eastbound lanes of Lake Shore Boulevard between Logan Avenue and a point approximately 240 metres west of Leslie Street for $1 million;

(3) the purchase of private property on the north side of Lake Shore Boulevard between Booth Avenue and Carlaw Avenue at a price to be determined through negotiations; and

(4) the purchase of private property on the south side of Lake Shore Boulevard between a point approximately 240 metres west of Leslie Street and Leslie Street at a price to be determined through negotiation.

Contact Name and Telephone Number:

Kathleen Llewellyn-Thomas, Manager, Project Planning and Design

Telephone - 392-8590, Fax - 392-4426.)

(City Council also had before it, during consideration of the foregoing Clause, communications from the following individuals in opposition to the F.G. Gardiner Expressway East Dismantling Project:

(i) (February 23, 1998) from Mr. James Alcock, Chair, Citizens for the Retention of the East Gardiner Expressway;

(ii) (February 25, 1998) from Mr. M. Comstock, Chair, St. Lawrence Neighbourhood Business Improvement Area;

(iii) (February 25, 1998) from Mr. D. Ophek, B.Sc., Toronto Bay Group;

(iv) (February 26, 1998) from Ms. S. Comstock , Toronto, Ontario;

(v) (February 27, 1998) from Mr. William Dale, Toronto, Ontario;

(vi) (February 28, 1998) from Mr. T. De Silva, Scarborough, Ontario; and

(vii) (March 3, 1998) from Mr. Antonio Dionisio, Business Manager, Local 183, Labourer's International Union of North America.)

(City Council on April 16, 1998, had before it, during consideration of the foregoing Clause, communications from the following individuals:

(i) (March 3, 1998) from Mr. K. Walters, Toronto, forwarding petitions containing signatures from concerned citizens who support the rehabilitation of the F. G. Gardiner Expressway East and oppose its demolition;

(ii) (March 15, 1998) from Mr. Brian Gallagher, Toronto, in favour of the removal of the F. G. Gardiner Expressway East;

(iii) (April 8, 1998) from Mr. K. W. Ferguson, Vice-President, Toronto Film Studios Inc., expressing concern that heavy demolition work resulting from the dismantling of the F. G. Gardiner Expressway East will seriously impact on the film industry, which uses this area for shooting, and urging Council to take the needs of the film industry into consideration when making a decision on the future of the Expressway;

(iv) (April 14, 1998) from Mr. B. Mather, Vice-President, Citizens for a Lakeshore Greenway (CFLAG), in support of the dismantling of the F. G. Gardiner Expressway East; and

(v) (April 14, 1998) from Mr. B. Budd, President, East End Citizens for Democracy, in support of the dismantling of the F. G. Gardiner Expressway East.)

Respectfully submitted,

JOE PANTALONE,

Chair

Toronto, February 9, 1998

(Report No. 3 of The Urban Environment and Development Committee, including additions thereto, was adopted, as amended, by City Council on April 16, 1998.)

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