May 5, 1999

To:Urban Environment and Development Committee

From:General Manager, Transportation Services

Executive Director and Chief Planner, City Planning

Subject:F.G. Gardiner Expressway East Dismantling Project

Purpose:

The purpose of this report is to request the Urban Environment and Development Committee to make a final decision on whether or not the City should proceed with the F.G. Gardiner Expressway East Dismantling Project as endorsed by the former City of Toronto and Metro Toronto Councils in December, 1996. An assessment carried out in April, 1999 indicates that the structural condition of the Expressway has reached a point where it is essential that either dismantling take place or the full rehabilitation program be initiated. We cannot predict a time or date at which a structural failure could occur. However, the risk to public safety increases every day that work is deferred.

This report also presents the results of four studies authorized at the December 1, 1998 meeting of the Urban Environment and Development Committee: the Alternative Rail Service Delivery Study, the Community Improvement Plan, the Air Quality Study - Phase III, and the Area Traffic Management Study; and responds to various requests made at the same meeting.

Funding Sources, Financial Implications and Impact Statement:

The 1999 - 2003 Capital Works Program for the Transportation Services Division includes $3million for the F.G. Gardiner Expressway East Dismantling Project in 1999 (C-TR-026).

Recommendations:

It is recommended that Urban Environment and Development Committee:

(1)endorse the Gardiner Expressway East Dismantling Project, as originally approved by the former City of Toronto and Metro Toronto Councils, and direct staff to reinitiate the project immediately;

(2)(a)instruct the City Solicitor to take the necessary actions to complete City Council's consideration of the Community Improvement Plan contained in Appendix 3 of this report;

(b)allocate $1.25 million, from the Gardiner East Dismantling Project budget, to the implementation of the Community Improvement Projects, listed in Sections 3.1 and 3.4 of the Community Improvement Plan contained in Appendix 3 of this report, whose completion is to coincide with the overall project;

(c)allocate $250,000 from the Gardiner East Dismantling Project as a contribution towards completing additional Community Improvement Projects listed in the Community Improvement Plan contained in Appendix 3 of this report.

(d)request the Commissioner of Economic Development, Culture and Tourism to investigate and report back on the potential for improvements, to Leslie Grove Park as outlined in Section 4.1 of Appendix 3 of this report;

(e)request the Commissioner of Works and Emergency Services:

(i)to review street lighting conditions on Queen Street East, Eastern Avenue, and on public lanes within the Community Improvement Plan area and report back;

(ii)to install, monitor, and report back on the effectiveness of traffic management measures on Logan Avenue described in Section 5.1 of Appendix 3 of this report; and

(iii)coincident with the removal of the existing pedestrian crossover on Eastern Avenue at Caroline Avenue, to install a pedestrian activated traffic control signal on Eastern Avenue at Larchmount Avenue described in Section 5.2 of Appendix 3 of this report.

(f)the Parking Authority of Toronto be requested to investigate and report on the feasibility of creating a commercial lot to service businesses on Queen Street East between Carlaw Avenue and Leslie Street.

(3)request the Commissioner of Works and Emergency Services to hold $100,000.00 in reserve for a Film Industry awareness campaign to address the concerns raised by the Film Industry.

Conclusions:

City staff, area residents and area businesses have worked for over 3 years on the issue of what to do with the east end of the F.G. Gardiner Expressway. The following conclusions have been drawn based upon the work completed:

Structural Concerns:

• the structural condition of the Gardiner Expressway East has reached a point where we must either proceed with dismantling or the full rehabilitation program;
• long-term public safety can no longer be guaranteed with a further deferral or delay of work.

Dismantling vs. Rehabilitation:

• the Dismantling Project offers many benefits over rehabilitation: $14 million (net present value, 1996 dollars) in life-cycle cost savings, "city-building" opportunities, and the "greening" and humanizing of the Gardiner - Lake Shore corridor.

Approved Plan vs. Alternative Plan:

• the Approved Plan provides the best package of benefits in terms of traffic conditions; improved urban design; enhanced environmental conditions; greater opportunities for community improvement projects and long-term cost savings to the taxpayer;

• although the Alternative Plan (described in Appendix No. 1) is physically feasible and would provide a satisfactory operation, its benefits in vehicular delay reduction are minimal when traded-off against the lower cost, better urban design and other advantages of the Approved Plan.

Rail:

• currently there are no regularly scheduled daytime rail crossings of Lake Shore Boulevard, all scheduled rail crossings of Lake Shore Boulevard occur at night;

• staff recommend proceeding with the rail relocation design proposed as part of the Dismantling Project;

• modifications required to remove rail traffic from Lake Shore Boulevard are estimated at $16.6 million, not including property costs, compared to $3.2 million for rail modifications as proposed in the Dismantling Project;

• rail removal can be protected as a long-term option, if justified by future increases in rail traffic.

Air Quality:

• the Medical Officer of Health's review of the Air Quality Study indicates that dismantling is slightly favoured over rehabilitation because it best protects air quality in the residential community.

Traffic Infiltration:

• the most recent assessment of traffic infiltration confirms the earlier findings of the Environmental Assessment:

-no significant east-west traffic diversions are expected either during or after construction of the Dismantling Project;

-the most significant diversion of traffic occurs on Carlaw Avenue with the transfer of north-south traffic flows from Leslie Street.

Community Improvement Plan:

• Community Improvement Projects recommended to be implemented in conjunction with the Dismantling Project provide additional "greening" of the area, improve safety for pedestrians, cyclists and motorists and provide additional amenities for the community

Noise and the Film Studios:

• a protocol has been developed to minimize construction noise impacts on the film studios, including a $100,000.00 reserve fund to cover the cost of an industry awareness campaign, if required.

Due to the advanced deteriorated state of the existing structure a decision must be made now to either dismantle the east end of the Gardiner Expressway or to rehabilitate it. Staff recommend that City Council proceed with the dismantling option because of the long-term cost savings, the urban design and city-building benefits and the potential for community improvements compared to rehabilitating the existing structure.

Council Reference:

At its meeting held on November 30, 1998 and December 1, 1998, the Urban Environment and Development Committee had before it the following reports and communications:

(i)(November 23, 1998) from the General Manager, Transportation Services, the Executive Director and Chief Planner, City Planning, and the Medical Officer of Health, entitled F.G. Gardiner Expressway East Dismantling Project;

(ii)(July 7 and 9, 1998) from the General Manger, Transportation Services, both entitled F.G. Gardiner Expressway East Dismantling Project;

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

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

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

(1)adopted the November 23, 1998 report from the General Manager, Transportation Services, the Executive Director and Chief Planner, City Planning, and the Medical Officer of Health entitled F.G. Gardiner Expressway East Dismantling Project thereby directing staff to conduct three studies: an Alternative Rail Service Delivery Study, a Community Improvement Plan, and an Air Quality Study;

(2)deferred consideration of the remaining reports (i.e. July 7 and 9, 1998, July 13, 1998, June 18, 1998) pending the results of the studies;

(3)requested the Commissioner of Works and Emergency Services:

(a)to report to Council through the Urban Environment and Development Committee, before May 1999, with a detailed plan for the prevention of traffic infiltration in residential neighbourhoods during construction as a result of either dismantling or rehabilitation of the Gardiner Expressway East, and a second detailed plan for the prevention of traffic infiltration in residential neighbourhoods as a result of closures of Lake Shore Boulevard for whatever reason after dismantling of the Gardiner Expressway East, should City Council decide to proceed;

(b)provide a consolidated report to the Urban Environment and Development Committee addressing all relevant issues, i.e., traffic studies, impact on neighbourhoods, including the communities from Leslie Street to Coxwell Avenue, the feasibility of a light rail system or street car route along the Lakeshore; and further that the Chair of Committee ensure that Toronto Transit Commission staff are involved in discussions respecting the design and right-of-ways in this regard; and

(c)develop a noise mitigation and monitoring protocol in partnership with the Film Industry representatives, and report thereon to the Urban Environment and Development Committee; and further that the Film Office consult with the film industry to develop and implement a public relations plan;

(4)requested the Toronto Transit Commission to participate in the planning process relating to the F.G. Gardiner Expressway dismantling project to ensure appropriate measures are taken to facilitate the future introduction of mass transit on the Lakeshore, and the rerouting of express buses off Eastern and onto Lake Shore Boulevard; and

(5)requested Mayor Mel Lastman to meet with the Film Studio representatives to tour the facilities.

History:

Since the history of the F.G. Gardiner Expressway East Dismantling Project spans a number of years, this section provides a brief overview of the project and its rationale. 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 consisted of industrial and port uses. Originally planned as the first portion of the Scarborough Expressway, it was to link the Gardiner Expressway to Highway 401 and via the East Metro Freeway to connect to Highway 407. In 1971, a citizens group successfully lobbied the Ontario Municipal Board to order all work on the Scarborough Expressway stopped. As a result, the ultimate construction of the Scarborough Expressway was never realized.

Over the years, the 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.

In January 1996, during consideration of the former Metro Transportation Department's 1996-2000 Capital Works Program, the former Metro Planning and Transportation Committee requested a report on whether the rehabilitation of the Gardiner Expressway east of the Don Valley Parkway should continue or whether dismantling should be considered. A quick review was undertaken and based on the results of this quick review, staff were authorized to undertake an Environmental Assessment to assess all possible alternatives in greater detail and to consult with stakeholders. The F.G. Gardiner Expressway East Environmental Assessment and Preliminary Design Study (Class EA Study) was initiated in April 1996 and completed in November 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. On the basis of the urban design benefits, impacts on transportation service in the Gardiner Expressway-Lake Shore Boulevard corridor, and a $14 million life-cycle cost savings, both the former City of Toronto and Metro Toronto Councils endorsed the Dismantling Project in December 1996. Thus, the preferred option became the "Approved Plan". Final EA approval was confirmed in April 1997 and detailed design of the project began in May 1997.

On April 16, 1998, City Council adopted Clause 1 of Report No. 3 of the Urban Environment and Development Committee. By doing so, Council passed 14 motions directing staff to undertake a number of analyses and respond to questions. One of the requests was to examine the feasibility of dismantling the Gardiner Expressway in such a way that the traffic signal at Carlaw Avenue and Lake Shore Boulevard is by-passed. A number of options were explored to develop what is now referred to as the "Alternative Plan". The "Alternative Plan" involves leaving a longer section of the Gardiner in place, and locating the entrance and exit ramps so that they merge with Lake Shore Boulevard east of Carlaw. Although implementation of the Alternative Plan would require a new Environmental Assessment, to ensure consistency with previous work this Plan was evaluated using the same three factors as was the "Approved Plan" during the original Environmental Assessment Study: urban character; transportation service; and 50-year life-cycle cost. The assessment of the "Alternative Plan" concluded that although it is physically feasible and would provide satisfactory operation, its benefits in vehicular delay reduction are minimal when traded-off against its higher cost and poorer urban design characteristics as compared to the "Approved Plan" for the Dismantling Project. As a result, staff recommended that the project continue according to the "Approved Plan". The detailed evaluation of the "Approved Plan" versus the "Alternative Plan" can be found in Appendix 1.

The staff report dealing with the analysis of the"Alternative Plan" and other matters raised by Council was deferred at both the July and December, 1998 meetings of the Urban Environment and Development Committee pending the completion of four studies: a community improvement plan, a study to explore alternative rail service delivery options for the Port Area, an air quality monitoring program and a request to develop an area traffic management plan. These studies are now complete and their findings presented below in this report.

Discussion:

(1)Why dismantle...

The F.G. Gardiner Expressway East Dismantling Project has developed into much more than just a transportation maintenance project. In developing the dismantling alternative it has become clear that there are many benefits to this project over and above the approximately $14 million (net present value, 1996 dollars) in cost savings - the "city-building" possibilities, the "greening" and the overall improvements to the community.

From a city planning perspective, the most striking feature of the Gardiner East Dismantling Project is the inclusion of urban design, and "green" elements as part of the proposal to transform Lake Shore Boulevard into a new urban boulevard. This "greening" includes the addition of:

-a landscaped "green" space having a maximum width of 30 metres along the north side of the new road;

-a new trail for cyclists and pedestrians within the green space on the north side of Lake Shore Boulevard;

-a pedestrian path and landscaping on the south side of Lake Shore Boulevard;

-a landscaped median; and

-public art, to be developed in consultation with the community.

Overall, these design elements have a significant impact on humanizing the physical environment of the Lake Shore/Gardiner East and improving the physical amenity of the area.

(2)Why the decision must be made NOW....

The Environmental Assessment Study that led to the F.G. Gardiner Expressway East Dismantling Project was initiated because of the poor structural condition of the Gardiner east of the Don Valley Parkway and the immediate need to begin rehabilitative efforts. Since then, the structural condition of the Gardiner East has continued to deteriorate. The emergency measures that have been implemented, lane reductions and localized emergency repairs, have done little to prolong the life of this structure. Our most recent assessment, carried out in April 1999, has indicated that a decision on whether to dismantle or rehabilitate is required immediately. The condition of the structure is such that emergency repairs will do little to keep this portion of the Expressway in operation over the long term. We must either proceed with the dismantling project or initiate the full rehabilitation program to ensure that public safety is protected. Therefore, it is crucial that a FINAL decision be made at the May 17, 1999 Urban Environment and Development Committee meeting.

(3)Results of Studies and Responses to Various Motions:

The results of the four studies: the Alternative Rail Service Delivery Study, the Community Improvement Plan, the Air Quality Study and the Area Traffic Management Study, are briefly summarized in the following paragraphs. Full reports on the findings of each of these four studies can be found in Appendices 2 through 5. In addition, at the December 1, 1998 Urban Environment and Development Committee a number of motions were made requesting additional information. The responses to these motions can be found in Appendix 6.

(a)Alternative Rail Service Delivery Study (Appendix No. 2):

The current plan for the F.G. Gardiner Expressway East Dismantling Project proposes to relocate the Q200 lead, which is the rail line that is located in the median of Lake Shore Boulevard, between Booth Avenue and Leslie Street, to the north side of Lake Shore Boulevard. In order to address the concerns of Logan Avenue residents and the motorists that travel through the area, the Alternative Rail Service Delivery Study was carried out to examine if the Q200 lead could be removed from Lake Shore Boulevard altogether.

The Q200 lead performs two functions:

(i)As far as Carlaw Avenue it is a switching lead for the Keating Yard ( the switching yard is used by the railways to sort rail cars going to and from the Port Area); and

(ii)It provides rail service to the eastern and southern Port areas through an alignment that parallels Leslie Street and Unwin Avenue to access the Port of Toronto Piers 51 & 52. En route it serves CanRoof Corporation, the City of Toronto Main Sewage Treatment Plant and Intermetco via a network of spur lines.

In order to eliminate the portion of the Q200 lead along Lake Shore Boulevard there must be an alternative for both of these functions.

Four alternative schemes were developed to modify or replace the Keating Yard and thereby minimize or eliminate shunting activity east of Booth Avenue. Of the four alternatives, Alternative1 - Shortening of the Keating Yard, is the most desirable.

Four route alternatives that would provide an alternate link to the Port Area in addition to providing connections to all existing industries currently served were developed and evaluated. Route Alternative 4 - Don Roadway was seen as the least problematic of the four alternatives. Although this alternative has the highest construction cost, it provides the best compromise between maintaining existing rail service and promoting future rail service growth while minimizing impacts on road operations.

Based on the assessment carried out the following conclusions have been reached:

• as long as CanRoof Corporation continues to be the main customer on the Q200 Lead, the Don Roadway route alternative is not desirable from an operational perspective and therefore the significant capital costs associated with this option cannot be justified. If the Port of Toronto is successful in the future in significantly increasing its use of rail service, the Don Roadway route alternative will become more operationally feasible; and

• while a shortening of the Keating Yard may be feasible with the Q200 Lead in its current position on Lake Shore Boulevard, the full benefits of this yard alternative cannot be realized until the Q200 Lead is removed from Lake Shore Boulevard.

As a result, we recommend that the shortening of the Keating Yard and the Don Roadway route alternative be considered longer term options. If the Port of Toronto significantly increases its rail usage, at that time cost sharing arrangements between the City, TEDCO and THC could be explored.

In the interim, the rail relocation design proposed as part of the Dismantling Project could be implemented without precluding either of these potential future modifications to the Port Area rail network.

Full details of the process followed in conducting the Alternative Rail Service Delivery Study, the alternatives developed and evaluated, and the businesses and members of the public that were consulted can be found in Appendix 2.

(b)Community Improvement Plan (Appendix No. 3):

A proposed Community Improvement Plan is included as Appendix 3 of this report. Preparation of the Community Improvement Plan included extensive public consultation by City staff with a wide variety of local interest groups. As well two public open houses held on the project gave the public additional opportunities to comment and make suggestions regarding the community improvement projects comprising the Plan. The types of projects included in the Community Improvement Plan are diverse, but fall into three broad categories:

- projects which add further value to a redesigned Lake Shore Boulevard as an urban boulevard containing a substantial "green" corridor;

-traffic management related improvements; and

-projects which are independent of the Gardiner East Dismantling Project.

Appendix 3 of this report contains a detailed discussion of the individual Community Improvement Projects. Overall, the Community Improvement Plan provides a framework for future public reinvestment within South Riverdale in order to improve its amenity and livability. The Community Improvement Plan proposed is best achieved in conjunction with the Gardiner East Dismantling Project as recommended by City staff. Should City Council not implement the Gardiner East Dismantling Project, the Community Improvement Plan as proposed in Appendix 3 will have to be substantially reduced in scope. In addition, it is not clear how a reduced Community Improvement Plan could be funded.

(c)Air Quality Study - Phase III (Appendix No. 4):

An ambient air quality monitoring study was conducted to allow for an assessment of the current ambient situation and for the refinement of modelling prediction of the impact of either the rehabilitation or dismantling of the F.G. Gardiner Expressway East. The objectives of this study were to:

• measure background levels of certain air pollutants in the study area;
• identify and characterize the range of pollutant sources in the study area;
• predict the dispersion potential of the pollutants monitored for both options - rehabilitation and dismantling; and
• identify measures that will mitigate negative air quality impacts associated with the rehabilitation or dismantling of the F.G. Gardiner Expressway East.

The study concluded that the overall assessment of air quality impacts associated with either option of the Gardiner East slightly favours dismantling because it best protects air quality in the residential community.

(d)Area Traffic Management Study (Appendix No. 5):

An Area Traffic Management Study was undertaken for the area in the vicinity of the Gardiner East Dismantling Project as defined by Coxwell Avenue, Commissioners Street and Lake Shore Boulevard East, Booth Avenue and Queen Street. The objectives of the study were to:

• Evaluate existing and future traffic conditions in the study area;

• Predict potential changes in traffic patterns that could occur during and after the Gardiner East Dismantling Project; and

• Identify measures to improve existing traffic conditions as well as measures which would address any future traffic-related problems, with or without the dismantling project.

The major findings and conclusions of the Area Traffic Management Study can be summarized as follows:

• there is an existing capacity problem for the eastbound left-turn movement at Lake Shore Boulevard and Coxwell Avenue during the p.m. peak period. This capacity problem could be addressed by a double eastbound left turn under existing conditions, or by providing an alternative route via Knox Avenue or Woodfield Road after the dismantling of the Gardiner Expressway East;

• similar to the findings of the Environmental Assessment Study for the Dismantling Project, the travel times on parallel east-west routes in the area are currently balanced and will be balanced both during and after construction, with the Gardiner Expressway always being the fastest route. As a result, no significant east-west traffic diversions are expected either during or after construction of the Dismantling Project;

• also similar to the findings of the Environmental Assessment Study, the most significant increase in traffic volumes on north-south streets after dismantling will occur on Carlaw Avenue. This is as a result of motorists with local origins or destinations diverting from Leslie Street where they currently access or exit the Gardiner Expressway and ; and

• mitigating measures can be implemented to address community concerns regarding existing incidences of traffic infiltration and speeding that have been identified through this study.

Contact Name:

John P. Kelly

Manager, Infrastructure Planning

Phone: 392-8340

Fax: 392-4426

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

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