Pilot Project - Clothing Optional Beach at Hanlan's Point

(Ward 24 - Downtown)

The Economic Development Committee recommends that the report (April 19, 1999) from the Commissioner of Economic Development, Culture and Tourism be adopted subject to amending Recommendation (1) to read:

"(1)that Council approve a pilot project for the summer of 1999 to implement a clothing option beach at a section of Hanlan's Point Beach on Toronto Islands;".

The Committee reports, for the information of Council, having requested the Commissioner of Economic Development, Culture and Tourism to investigate ways of attracting naturists to Toronto and report on this matter to the Economic Development Committee.

The Economic Development Committee submits the following report (April 19, 1999) from the Commissioner of Economic Development, Culture and Tourism:

Purpose of Report

The purpose of this report is to seek Council approval to implement a one year pilot project to introduce a clothing optional beach at Hanlan's Point Beach on the Toronto Island.

Funding Implications

The implementation of this pilot project will require the installation of signage, landscape screening and temporary fencing in selected locations which will be derived from funds placed in the Capital Budget, to the expected limit of $ 5,000.

Recommendations:

It is recommended:

(1)that Council approve a one year pilot project to implement a clothing optional beach at a section of Hanlan's Point Beach on Toronto Islands;

(2)that a project committee consisting of City Staff, the proponents, the City Solicitor, the Toronto Police Force, the Toronto Island Community and other interested parties be convened to assist in the implementation of the pilot project, the development of evaluation criteria and an education/awareness program;

(3)that an evaluation of this pilot project be conducted and forwarded to the Economic Development Committee by December 1999; and

(4)that appropriate City Officials be authorized and directed to take the necessary action to give effect thereto.

Background

Staff received a well researched and comprehensive brief from Mr. Peter Simm, a director of TNT!MEN (Totally Naked Toronto Men Enjoying Nudity) and the Hanlan's Point Naturists which proposes the establishment of a clothing optional beach at Hanlan's Point on the Toronto Island. The brief is attached to this report for the information of Committee ("Appendix A").

Under the Uniform Parks By-law, swimming at all beaches within the City is regulated with respect to proper bathing attire. This regulation is not able to be enforced with respect to women who wish to bathe topless due to the Ontario Court of Appeal decision of the Gwen Jakob case.

The proposed location for this pilot project on Hanlan's Point ("Appendix B"), has a long history of use as a clothing optional beach area. From 1894 to 1930, a City by-law specifically authorized Hanlan's Point and two other locations as a clothing optional beach. Although the by-law was rescinded in 1930, Hanlan's Point has continued to be used as a clothing optional beach, and the enforcement of the proper bathing attire requirement of the Uniform Parks By-law have been enforced on only a sporadic basis since the late 1980's.

This proposal has been reviewed by the Toronto Police as well as the Toronto Island Residential Trust, and their comments have been considered in developing the recommendations.

Other Clothing Optional Locations

There are other locations within the City of Toronto which are reported to be frequented by individuals participating in clothing optional sunbathing, nude recreation and swimming. These locations include the Highland Creek Beach Area, and sections of the Tommy Thompson Park located on the Leslie Street Spit. This proposal would provide some meaningful policy framework and an legitimate location for individuals who wish to take advantage of a clothing optional facility. As a part of this proposal, Council could direct that enforcement activities be increased at other unsanctioned locations to attempt to direct people who wish to use clothing optional beaches to the Hanlan's Point location.

Other major Cities in Canada and North America have implemented clothing optional beach locations with little negative implications. Vancouver has had the "Wreck Beach" location as a formally recognized clothing optional beach since 1989, although the site had been used in a similar manner for decades. This beach is used for both active purposes (volleyball, frisbee, etc) and passive uses. The staff of the Greater Vancouver Regional District (GVRD) report no negative implications of the clothing optional beach from an operational, enforcement or environmental standpoint. The GVRD also has reported that there is strong support and regular liaison with the Wreck Beach Preservation Society, a volunteer based group which is active in the ongoing management of the area in conjunction with staff.

Potential Conflict in Use

This site is currently used by many individuals for clothing optional sunbathing and recreation. It is also used by the general public and the boating community who anchor their boats in the relatively protected waters adjacent to the beach. Further, the beach area is used extensively by the public to view events, particularly the Symphony of Fire Fireworks Competition and the Canadian International Air Show during the CNE. With appropriate signage and screening, and designating only a portion of the beach area as clothing optional, potential conflicts in use can be minimized. There are also other beach alternatives on the Island for those who may be offended by a clothing optional location and wish to use the beach facilities during a visit to the Toronto Islands. The proposed location is quite removed from the residential community and the primary parkland attractions of Centre Island are several kilometres from this proposed location.

There may be more of a concern over illicit or inappropriate behaviour on this site than those concerns from members of the public who might be offended by the prospect of a nude recreation area. In recent years, there have been more instances of enforcement with respect to illicit or inappropriate behaviour of some users of this beach then any other complaints.

Tourism and Economic Impact

The brief provides an overview of the economic impact of establishing a clothing optional beach in Toronto. It indicates a positive impact on the hotel and hospitality sectors within the City. Further, the brief indicates that other locations have reported that a clothing optional beach area can become a draw for international travel and has stimulated businesses that cater to individuals who would use these facilities. Our staff in the Economic Development office are currently evaluating the potential economic impact and could report on this aspect of the proposal in the future.

Impact on Ferry System

The brief also provides an overview of the potential impact on the Ferry System. The brief indicates that as many as 5000 people could use this facility each weekend day during the peak summer season. If this scenario is correct, they indicate that incremental revenues of up to $ 400,000 per year is possible. This is an optimistic target and it is clear that net revenues during a pilot project would not be substantial and would build in the longer term. Further, the brief suggests that this increase in ridership of the ferry system would be accomplished on an incremental basis with little or no impact on the cost of providing this service. If the projected numbers of 5000 people per day on summer weekends were realized, several changes and adjustments to the ferry loading and scheduling would have to be considered since this additional load is well beyond the current capacity of boats servicing the Hanlan's Point location. This demand during the pilot period of this summer is not anticipated to be problematic.

Environmental Impact

The Hanlan's Point Location is adjacent to and forms part of an Environmentally Sensitive Area (ESA) which has been designated by the Toronto Region Conservation Authority. ESA number 115 is known for its willow strand and unique plant growth in the sand dunes of the area ("Appendix C"). Further, there has been some significant erosion of the beach area at the South end of Gibraltar Point due to high lake levels over the last several years. A shoreline protection initiative is planned in conjunction with the construction of the deep lake cooling water initiative which will commence construction on the Island this summer.

It is clear that the active use of the beach strand area could have a negative effect on the ESA unless adequate management measures are employed in the planning and implementation of the clothing optional beach at Hanlan's Point. Specifically, appropriate signage, screening and additional plantings will be necessary and, there may be the requirement to fence certain areas of the ESA in order to prevent trespassing and consequent damage of this delicate ecosystem. Staff believe that the appropriate planning and management of this area, and the education of those individuals who use the area about the sensitive nature of the ESA and the appropriate usage of the area will be required. Clear enforcement requirements of the trespassing clauses of the Parks By-Law can also be evoked.

Implementation Costs

A one year pilot of a clothing optional area at Hanlan's point can be implemented with a total upset cost of $ 5,000. This would include the requirement for signage, temporary fencing, temporary screening, and an education brochure respecting the environmental sensitivity of the site. These costs could be funded from a capital program allotment set aside for the Toronto Islands in the 1999 Capital Budget.

There is one lifeguard station currently located on the Hanlan's Point Beach and we would recommend that it be relocated outside of the designated clothing optional area. This area will have to be properly signed to indicate that it is an unsupervised area from a safety supervision standpoint. There are also no washroom or change facilities located in the beach area and some consideration must be given to the potential of portable toilet facilities to be located there for the summer season. There is a full service washroom facility and concession area near the site which will provide an acceptable level of service for the area.

There may be other potential costs of this initiative including patrol and enforcement of inappropriate behaviour on the site by the Toronto Police and the Marine Unit.

In the longer term, if this proposal is extended to be a more permanent location and depending on the response and number of visitors to the area, it is possible that on-site washroom and changeroom facilities may be required along with other infrastructure improvements to the site.

Requirement for Community Involvement

Staff believe that one of the critical factors in this pilot project will be the involvement of the broader community in the implementation of the project. This is a cornerstone of the operating principles of the Department, and based on the Vancouver experience with the Wreck Beach location, the Wreck Beach Preservation Society has been instrumental in the apparent success of that location. This team, in the initial pilot period will require extensive involvement from City Staff including the City Solicitor, Health Department and both the Marine Unit and 52 Division of the Toronto Police Department. This team will also assist in the development of evaluation criteria, site requirements, education and awareness programs.

Conclusion

The proposal from TNT!MEN and the Hanlan's Point Naturists has been well researched and is presented in a cogent and thoughtful manner. Given that Toronto is a major world class City, we should recognize that there is an element of the population who enjoy nude sunbathing and recreation. In contrast, there are others who will be offended by this proposal and feel that any public park is not an appropriate location for a clothing optional facility.

Recognizing the apparent demand for this type of facility, there is some merit to designating one location for this activity in order to minimize the conflicts of use and perception to one location. Aside from the presence of the ESA at this location, the beach at Hanlan's Point is a very appropriate location for this pilot project. It is remote enough to any residential and children's play areas on the Islands that the public who may be offended by a clothing optional beach can avoid the area, while it is close enough to the City and the Hanlan's Point Ferry Docks to make it accessible. The physical area can be adequately screened and appropriately signed to ensure that individuals do not stumble into the area unknowingly.

The ESA provides the biggest challenge to the establishment of the clothing optional beach at this location. Some significant signage, temporary fencing, and landscape screening must be installed to ensure that there is no trespassing of individuals into the ESA. Further, some aggressive education of the importance and delicate nature of the ESA will be required along with an enforcement component for those found to be trespassing within the most delicate areas of the ESA.

Contact

John A. Macintyre

Director of Parks and Recreation

397-4451

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The Economic Development Committee also had before it the following communications, and copies thereof are on file in the office of the City Clerk:

-Appendix "A" - Brief submitted by Peter A. Simm, titled "Enhance Toronto Tourism & Recreation: Restore Clothing-Optional Status to Hanlan's Point Beach";

-Appendix "B" - Map of Toronto Island Park identifying the proposed location of the clothing optional beach at Hanlan's Point;

-Appendix "C" - Environmentally Significant Areas Study from the Metropolitan Toronto and Region Conservation Authority;

-(April 12, 1999) from Robert A. Phillips, Toronto, in support of a clothing optional beach at Hanlan's Point;

-(April 11, 1999) from Ted and Lesley Thompson, Ottawa, in support of a clothing optional beach at Hanlan's Point;

-(April 9, 1999) from A. W. Hatch, Newmarket, in support of a clothing optional beach at Hanlan's Point;

-(April 12, 1999) from A. W. Hatch, Newmarket, in support of a clothing optional beach at Hanlan's Point;

-(March 7, 1999) from G. N. Jerry Ford, Toronto, in support of a clothing optional beach at Hanlan's Point;

-(March 31, 1999) from Douglas Simpson, Guelph, in support of a clothing optional beach at Hanlan's Point;

-(undated) from Dr. Paul Rapoport, Ancaster, in support of a clothing optional beach at Hanlan's Point;

-(April 11, 1999) from David Basford, Federation of Canadian Naturists, Etobicoke, in support of a clothing optional beach at Hanlan's Point;

-(April 9, 1999) from Judy E. Williams, Canadian Naturist Action Committee Member, Public Relations Director and Government Affairs Officer, Federation of Canadian Naturists, and Chair, Wreck Beach Preservation Society, in support of a clothing optional beach at Hanlan's Point;

-(April 10, 1999) from Stephen Biggs and Tanya Gerber, Toronto, in support of a clothing optional beach at Hanlan's Point;

-(April 20, 1999) from Peter Klungel, Toronto, in support of a clothing optional beach at Hanlan's Point;

-(undated) from Geremy Vincent, Toronto, in support of a clothing optional beach at Hanlan's Point;

-(April 14, 1999) from John Pazynik, Burlington, in support of a clothing optional beach at Hanlan's Point;

-(April 19, 1999) from Petra Scheller, Mississauga, in support of a clothing optional beach at Hanlan's Point;

-(April 13, 1999) from Carl Hills, Toronto, in opposition to a clothing optional beach at Hanlan's Point;

-(April 21, 1999) from Connie and Jim Sellen, Pickering, in support of a clothing optional beach at Hanlan's Point;

-(April 21, 1999) from Alison Stewart, Toronto, in support of a clothing optional beach at Hanlan's Point;

-(April 20, 1999) from Jim Hodder, Treasurer, The Federation of Canadian Naturists, in support of a clothing optional beach at Hanlan's Point;

-(undated) from Dave Fleming, Hanlan's Beach Naturists, in support of a clothing optional beach at Hanlan's Point; and

-(April 23, 1999) from Sivahuru Nathan, Toronto, in opposition to a clothing optional beach at Hanlan's Beach.

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The following persons appeared before the Economic Development Committee in connection with the foregoing matter:

-Peter Simm;

-David Drasic;

-Zak Kahn;

-Karina Matthews;

-Jim Hodder;

-Linda Deschenes;

-Dominic Carlo; and

-Karl Dorey.