Comments on the Port Union Waterfront Improvement Project

Environmental Assessment

Ward 16 - Scarborough Highland Creek

The Scarborough Community Council recommends the adoption of the following report (May18, 1999) from the Commissioner of Economic Development, Culture and Tourism:

Purpose:

To provide comments on the Port Union Waterfront Improvement Project Environmental Assessment (a project of the Toronto and Region Conservation Authority) to be submitted to the Ontario Ministry of the Environment.

Recommendations:

It is recommended that:

(1)Council endorse the comments contained herein on the Port Union Waterfront Improvement Project Environmental Assessment;

(2)this report be submitted to the Ontario Ministry of the Environment as comments on the Environmental Assessment; and

(3)the appropriate City officials be authorized and directed to take the necessary action to give effect thereto.

Council Reference:

The Toronto and Region Conservation Authority (TRCA) has proposed an improvement project for the Scarborough waterfront, between Highland Creek and the Rouge River. The project requires an individual Environmental Assessment (EA) to be prepared and approved under the provincial Environmental Assessment Act.

The TRCA has prepared an Environmental Assessment document for the Port Union Waterfront Improvement Project which has been submitted to the Ministry of the Environment (the Ministry) for approval under the provincial Environmental Assessment Act. The City of Toronto, among other agencies, has been asked to comment on the EA by the Ministry as part of the review under the Act.

In response to the Ministry's request for comments on the Environmental Assessment, this report has been prepared for submission as the City's comments. The Ministry will publish a review of the Environmental Assessment, based on comments received from members of the public and various agencies. A minimum 30-day review period is required, during which any interested party may make submissions on the Environmental Assessment.

An executive summary of the Environmental Assessment (Appendix A) and a plan of the project area (Appendix B) are on file in the Office of the City Clerk, Scarborough Civic Centre .

In essence, the undertaking entails the creation of a greenspace corridor south of the Canadian National Railway tracks between Highland Creek and the Rouge River that is natural in character. The project will establish a land base sufficient for a trail and other amenities south of the tracks. This greenway south of the tracks will also link existing parklands in this sector of the waterfront, creating linkages that will contribute to both regional and local scale functions.

The undertaking's key features include:

• 3.8 km of waterfront greenspace corridor and trail
• The addition of 11.82 hectares of lakefill south of the railway tracks
• The configuration of the shoreline will include two series of headland beach systems, a larger headland to function as a pedestrian node south of the tracks as an extension to the Village Common (described below) and two existing dynamic beaches at the western and eastern ends of the project. A portion of tableland in the centre section of the project, known as Chesterton Shores, would require only minimal shoreline work to maintain and enhance the existing land base.
• Five linkage points to the waterfront:
• a pedestrian underpass at the Port Union Village Common
• a pedestrian underpass at Lakeridge Drive
• a bridge across the mouth of Highland Creek (western limit of project area)
• an existing level crossing at Chesterton Shores
• an existing grade-separated crossing at Rouge Beach Park (eastern limit of project area)

Along the entire length of the project area, there is a high-speed railway corridor, which is part of the main GO Transit network. The majority of the railway embankment is higher than the inland areas, forming a barrier between the community and the Lake Ontario waterfront. The area north of the tracks has been undergoing redevelopment in recent years, particularly in the vicinity of Port Union Road.

At present, there are only two formal access points to the waterfront along the entire length of the project area. The first is at the level crossing at Chesterton Shores. The second is at the east end at the mouth of the Rouge River at Rouge Beach Park. The lack of safe access to the waterfront is a safety issue and one of the main reasons for the undertaking.

Several existing plans and initiatives that encompass the project area provide a planning context for the undertaking. The Metro Toronto Waterfront Plan (1994) recognizes the waterfront's regional significance. The TRCA's 1996 Integrated Shoreline Management Plan (ISMP) builds on the Waterfront Regeneration Trust's Lake Ontario Greenway Strategy (1995). The goal of both these documents is to "provide an ecosystem-based framework to ensure that shoreline management activities result in a clean, green, accessible, diverse, connected, open, affordable, attractive and useable waterfront."

At a more local level, the former City of Scarborough's Port Union Village Community Secondary Plan (Official Plan Amendment 858) covers the area from Highland Creek to Chesterton Shores. It calls for a public greenspace, the Village Common, to be located at the foot of Port Union Road. The Village Common would extend into the proposed waterfront area by means of a pedestrian tunnel (to be constructed by the City of Toronto) at the foot of Port Union Road, becoming one of the principal access points to the waterfront.

The estimated budget for the Port Union Waterfront Improvement Project is $16.8 million in 1998 dollars (excluding property acquisition). The project will be implemented by the TRCA with equal funding proposed from the Federal and Provincial governments and the City of Toronto.

It is proposed that the Port Union Water Front Improvement Project be funded in two main components: Phase I, from Highland Creek to Chesterton Shores, would be constructed first and Phase II, from Chesterton Shores to the Rouge River, would follow. The timing for the completion of each phase will depend upon the acquisition of shoreline properties, project funding, and project approvals.

The waterfront area will be operated by the city as part of its parks system. The City, therefore, has an interest in the project both as an operator as well as a funding partner.

Comments on the Environmental Assessment:

The Policy and Development Division of the Economic Development, Culture and Tourism Department requested and coordinated the submission of comments on the proposed undertaking from relevant city departments and services. Comments were received from Urban Planning and Development Services, the Economic Development division of Economic Development, Culture and Tourism, the Works and Emergency Services -Technical Services division (verbal reply indicated support for the project), and emergency services providers (fire, police and ambulance). Appendix C includes copies of the replies received. Comments on the EA, including those received from other departments, are set out below in several main headings.

(1)Park Form and Program

The project is to create a linear greenway south of the railway tracks between Highland Creek and the Rouge River, which will be predominantly natural in character. This greenway will require the placement of lakefill to achieve the necessary land base for the proposed facilities (principally the trail and the pedestrian node) and shoreline structures needed to achieve a suitable stable beach.

While the placement of lakefill is acknowledged as an impact on the existing shoreline, the proposed project has been designed to require minimal filling for the identified park program. Furthermore, a significant stretch of the area has a history of fill resulting from the creation of the railway bed. Given the need and the opportunity to provide safe access to the waterfront, the proposed lakefill appears to be justifiable and acceptable.

The project is in accord with the waterfront policies of the former Metro Official Plan and the former City of Scarborough. It will further enhance the City's objectives of improving access and enhancing the recreation potential of the waterfront.

(2)Relationship to the Community

The project has particular significance for the Port Union Village Community, which is undergoing redevelopment. The Port Union Village Community plan promotes access to and use of the waterfront and encourages improvement of its amenity value. The linkage of the Village Common by a pedestrian underpass to a pedestrian node on the waterfront is an essential element in the Village Common concept.

The plans for the undertaking were also formulated with community involvement and consultation and therefore the plan is considered to be supported by the public.

The undertaking would provide an overall benefit to the City as it seeks to meet the greenway needs of the community, the city and the region.

(3)Safe Public Access to the Proposed Waterfront Area

Safe access to the waterfront is a principal basis for the undertaking and stems from the presence of the railway embankment that forms a physical barrier to the waterfront. Appropriate measures should be taken to ensure that all planned access points are included in the final implementation of the project and that people are discouraged from crossing the tracks (e.g., with fencing and signage).

(4)Provision of Emergency Services in the Proposed Waterfront Area

Based on the anticipated increased use and activity in this section of the waterfront due to the creation of the parkland, emergency services providers (police, fire and ambulance) have commented on the need for appropriate access for their vehicles, both with respect to access to/from the park and access within the park.

South of the tracks, the 3.5-metre wide trail runs the full length of the proposed greenway and should be designed to accommodate emergency service and maintenance vehicles.

With respect to access to and from the greenway, there are, as outlined above, five points of access across the railway tracks. From west to east, these are:

• A bridge across the mouth of Highland Creek
• A pedestrian underpass at Lakeridge Drive
• A pedestrian underpass at the foot of Port Union Road (Village Common)
• A level crossing at Chesterton Shores
• A grade-separated crossing at Rouge Beach Park

The proposed pedestrian bridge across the mouth of Highland Creek, at the west end of the project area, will be able to accommodate the vehicles indicated (mini-pumper, ambulance, Chief's van) by emergency services providers. The pedestrian underpasses at Lakeridge and the Village Common will allow for a limited range of vehicles.

The level crossing at Chesterton Shores, slightly to the east of Port Union Road, should be able to accommodate a broad range of emergency vehicles. The same applies to the grade-separated crossing in Rouge Beach Park, at the east end of the project area, however, it should be noted that this park road is, at present, typically closed during the winter season.

As with any access road or facility, maintenance practices will be important to ensure that the access points remain serviceable as the park comes into public use. It appears that the access points identified in the EA provide the degree of access indicated in the comments from the emergency services providers.

Apart from the access comments, a number of other points were raised by emergency services providers to help ensure public safety on the waterfront greenway. These comments are outlined below. For the most part, they are most appropriately addressed in the detailed design and project implementation stages that would follow approval of the EA. They are included here in case of any potential implications they may have on the project that should be considered at this stage.

Emergency services providers indicated that adequate lighting should be installed for safety and security on trails and to assist emergency services staff. The EA states that park use at night, dusk and dawn would be discouraged in order to minimize disturbance to active fauna such as mammals and birds. This principle implies that lighting within the greenway may be limited to certain areas, e.g., the pedestrian node and lookout at the foot of Port Union where higher levels of use are anticipated.

The presence of lighting in the park in areas other than at the Port Union node should be considered with respect to resident flora and fauna and migrating birds as stated in the EA. Lighting may also provide a false sense of security to visitors using the park at night. Moreover, if use other than in the daytime is discouraged, then lighting should be limited to appropriate areas.

Emergency services providers indicated that public washrooms (with change rooms) should be incorporated in the park design. There are, at present, public washroom facilities at Rouge Beach Park and East Point Park (west of the project area). The plans for the Village Common also include public washrooms. As there are public washrooms in existence or planned within the greenway, this comment need not be addressed by the EA.

In their comments, emergency service providers suggested the following facilities and conveniences be considered for inclusion in the park:

• Public rescue equipment such as floatation rings and rescue poles located at intervals along the shoreline to enable on-scene witnesses to provide rescue assistance to victims without endangering themselves.
• Water fountains along the length of the park to prevent dehydration on hot days

Emergency telephones strategically placed along the length of the park; telephones should be marked with a number to which callers may refer when calling for help, in order to direct emergency services providers to a specific location more quickly.

The foregoing items can be addressed during the detailed planning and implementation stages for the project.

(5)Parking Provision and Access

The EA recognizes the importance of providing adequate parking but states that "no provision for parking facilities are being incorporated into the Project". This raises the concern of insufficient parking available for waterfront visitors. Inadequate parking was also raised in the comments from the police.

The nature of the project area limits the ability to provide parking facilities south of the tracks within the project area per se. Nonetheless, the issue of adequate parking for the proposed waterfront greenway should not be underestimated. It is recommended, therefore, that opportunities for parking to serve the waterfront area be pursued as the project progresses (e.g., near the Village Common, in association with the GO Station, at Chesterton Shores). As well, existing parking spaces in or near the project area (e.g., at the east end of East Point Park and at Rouge Beach Park) should be maintained and managed as access areas for the greenway.

(6)Economic Development

The Port Union Waterfront Improvement Project can be expected to have a positive effect on tourism, not only at a local level but also at a regional level. The presence of the park may also create opportunities for tourist-related amenities in the area.

(7)Environmental and Natural Heritage Issues

Disturbance of sensitive vegetation by off-leash dogs and the potential introduction of invasive plants are a concern in a number of the City's parks and natural areas. However, the EA recognizes the importance of this issue and strategies to address these problems and minimize degradation should be addressed in the detailed design and implementation stages.

(8)Satisfaction of Terms of Reference

The Terms of Reference for the EA approved by the Ministry appear to be satisfied by the document.

Conclusions:

The proposed undertaking would benefit the City of Toronto in several ways. First, it would provide safe and enjoyable access to this sector of the waterfront. Second, the undertaking would realize a greenway and trail along the Scarborough waterfront that would eventually form part of the completely connected Lake Ontario Waterfront Trail. It would also improve the connection between the Highland Creek and the Rouge River to the waterfront and to each other, building upon the city-wide connected trail system.

Although some of the issues raised in the comments pose concerns for the City, they can be addressed in the detailed design and implementation stages of this project.

Contact Names:

Frank Kershaw Tel: 392-8199

Brian Rutherford Tel: 392-8179

A copy of the responses received, referred to as Appendix C in the foregoing report, was provided to all Members of the Community Council and a copy thereof is on file in the Office of the City Clerk, Scarborough Civic Centre.