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Unlocking Toronto's Port Lands:
Directions for the Future -
Forwarding Report (Don River)
The Toronto Community Council recommends that:
(1)the following recommendations from the Planning and Transportation Committee, from its meeting of July 12,
1999, be adopted:
"(A)Recommendation No. (3) of the report (June 28, 1999) from the Commissioner of Urban Planning and
Development Services be amended to read:
"(3)the Commissioner of Urban Planning and Development Services carry out a public consultation process over
the next two months to solicit comments on the "Unlocking Toronto's Port Lands " report including the Port
Lands Community Forum, other community groups, BIAs, area landowners, industrialists and other businesses
and that this consultation process include discussions on how to protect and enhance the industrial potential, and
that it be a consultative process similar to that provided for the F.G. Gardiner East Dismantling Project;" and
(B)Recommendation No. (5) of the report (June 28, 1999) from the Commissioner of Urban Planning and
Development Services be deleted;
(C)the Commissioner of Economic Development, Culture and Tourism be actively involved in the development
process and that he be requested to report separately on all matters relating to the extension of the urban forest in
all areas of the Port Lands;
(D)the Acting Commissioner of Urban Planning and Development Services and the TTC be requested to report
jointly to the Planning and Transportation Committee on the options available in bringing public transit to this
area;
(E)a waterfront setback policy be established for the Port Lands;
(F)a transportation plan for automobile, truck, transit and rail access be developed;
(G)the following recommendations contained in the joint report (July 12, 1999) from Councillors McConnell and
Layton, be adopted:
(a)that further planning directions for the Port Lands effectively address the following issues:
(i)that Carlaw Avenue be emphasised as a potential gateway as well as encouraging access to the waterfront for
children and families;
(ii)the provision of a connection from Carlaw Avenue/Commissioners Street on the west edge of the turning basin
to a bridge (perhaps floating) across the Ship Channel to the east end of the Cherry Beach area;
(iii)the need to provide much better access to the public to the open spaces at Clarke (Cherry) Beach for
recreational purposes. Recreation needs of the whole city can be met here and this should be one of the priorities
for the new planning;
(iv)the need for more detail on the greenspace and access in subsequent plans;
(v)the poor air quality issues in the area be addressed in the next report;
(vi)a stronger emphasis on LRT plans;
(vii)consideration of implementing a "green roof policy" for the Port Lands;
(viii)the inclusion in the plan of an environmental template/plan including storm water management and food
production opportunities in the plan;
(ix)the connection of the wildlife corridor to the Leslie Street Spit including the consideration of ornithological
studies and height of buildings appropriate for birds. Songbird pathways should be improved and strengthened in
consultation with provincial birding organizations, and natural habitat and food sources should be enhanced
throughout the Port Lands;
(x)the identification of rail options to achieve the goals outlined in the Plan such as the revitalization of the mouth
of the Don River;
(xi)the development and application of green performance standards for all lands, developments and activities in
the Port Lands;
(xii)consideration of a design competition for the entire Port Lands at appropriate points in the development; and
(b)the goal of increasing employment in the Port Lands, including the protection of existing industry, be
supported and that the Port Lands Forum be permitted to establish a sub-group to meet in parallel with the citizens
to facilitate the involvement of as many affected businesses as possible;
(c)a facilitator be used to assist with the public consultations; and
(d)the Acting Commissioner of Urban Planning and Development Services, in conjunction with the Commissioner
of Works and Emergency Services, the Task Force to Bring Back the Don and affected Ward Councillors be
requested to undertake a full consideration of options, including flooding, groundwater and soil remediation, to
re-route the Don River and that a special meeting of experts and interested citizens be convened and that studies
previously prepared on this subject be made available."
(2)Recommendation No. (1) of the report (June 28, 1999) from the Commissioner of Urban Planning and
Development Services be amended to read:
"(1)City Council adopt in principle the planning directions outlined in the report 'Unlocking Toronto's Port
Lands: Directions for the Future, but that this adoption not be seen to prejudge the outcome of further
consultations concerning the concept of residential uses in the Quays and the Inner Harbour District;"
(3)the report (June 28, 1999) from the Commissioner of Urban Planning and Development Services, as amended
by Recommendations Nos. (1) and (2) be adopted;
(4)a Working Group on the greening and habitat preservation in the Port Lands be created, with special focus on
the south central part of the Port Lands;
(5)the boundary between the Port Lands Business District and the Industrial Employment District be reviewed;
(6)a special evaluation be undertaken of the Keating Quay; and
(7)consideration of the sailing clubs be an additional focus of review.
The Toronto Community Council reports, for the information of Council, having:
(1)requested the Acting Commissioner of Urban Planning and Development Services to report directly to Council on
extending the consultation time set out in Recommendation No. 1(A)(3) from two months to four months;
(2)directed that all persons who have communicated with the City on this matter be involved in the consultation process;
(3)endorsed the following actions of the Planning and Transportation Committee, from its meeting of July 12, 1999, in
having:
(a)requested the Acting Commissioner of Urban Planning and Development Services to report directly to Council for its
meeting on July 27, 1999:
(i)on the source of any additional funds required to implement the Committee's Recommendation 1(a) respecting an
expansion of the consultative process along similar lines as that implemented for the F.G. Gardiner East Dismantling
Project; and
(ii)in consultation with TEDCO and Ward Councillors, on an amended Recommendation to replace Recommendation (5)
of the report (June 28, 1999) from the Commissioner of Urban Planning and Development Services; and
(b)received a presentation given by Beate Bowron, Urban Planning and Development Services.
The Toronto Community Council submits the following communication (July 14, 1999) from the City Clerk,
Planning and Transportation Committee:
Recommendation:
That the Toronto Community Council, in accordance with Recommendation (6) of the report (June 28, 1999) from the
Commissioner of Urban Planning and Development Services, forward the following recommendations made by the
Planning and Transportation Committee at its meeting on July 12, 1999 to City Council for its meeting on July 27, 1999:
The Planning and Transportation Committee recommends that:
(1)the report (June 28, 1999) from the Commissioner of Urban Planning and Development Services be adopted subject
to:
(a)amending Recommendation (3) to read:
"(3)the Commissioner of Urban Planning and Development Services carry out a public consultation process over the next
two months to solicit comments on the "Unlocking Toronto's Port Lands" report including the Port Lands Community
Forum, other community groups, BIAs, area landowners, industrialists and other businesses and that this consultation
process include discussions on how to protect and enhance the industrial potential, and that it be a consultative process
similar to that provided for the F.G. Gardiner East Dismantling Project;" and
(b)deleting Recommendation (5);
(2)the Commissioner of Economic Development, Culture and Tourism be actively involved in the development process
and that he be requested to report separately on all matters relating to the extension of the urban forest in all areas of the
Port Lands;
(3)the Acting Commissioner of Urban Planning and Development Services and the TTC be requested to report jointly to
the Planning and Transportation Committee on the options available in bringing public transit to this area;
(4)a waterfront setback policy be established for the Port Lands;
(5)a transportation plan for automobile, truck, transit and rail access be developed;
(6)the following recommendations contained in the joint report (July 12, 1999) from Councillors McConnell and Layton,
be adopted:
(a)that further planning directions for the Port Lands effectively address the following issues:
(i)that Carlaw Avenue be emphasised as a potential gateway as well encouraging access to the waterfront for children and
families;
(ii)the provision of a connection from Carlaw Avenue/Commissioners Street on the west edge of the turning basin to a
bridge (perhaps floating) across the ship channel to the east end of the Cherry Beach area;
(iii)the need to provide much better access to the public to the open spaces at Clarke (Cherry) Beach for recreational
purposes. Recreation needs of the whole city can be met here and this should be one of the priorities for the new planning;
(iv)the need for more detail on the greenspace and access in subsequent plans;
(v)the poor air quality issues in the area be addressed in the next report;
(vi)a stronger emphasis on LRT plans;
(vii)consideration of implementing a "green roof policy" for the Port Lands;
(viii)the inclusion in the plan of an environmental template/plan including storm water management and food production
opportunities in the plan;
(ix)the connection of the wildlife corridor to the Leslie Street Spit including the consideration of ornithological studies
and height of buildings appropriate for birds. Songbird pathways should be improved and strengthened in consultation with
provincial birding organizations, and natural habitat and food sources should be enhanced throughout the Port Lands;
(x)the identification of rail options to achieve the goals outlined in the Plan such as the revitalization of the mouth of the
Don River;
(xi)the development and application of green performance standards for all lands, developments and activities in the Port
Lands;
(xii)consideration of a design competition for the entire Port Lands at appropriate points in the development; and
(b)the goal of increasing employment in the Port Lands, including the protection of existing industry, be supported and
that the Port Lands Forum be permitted to establish a sub-group to meet in parallel with the citizens to facilitate the
involvement of as many affected businesses as possible;
(c)a facilitator be used to assist with the public consultations; and
(d)the Acting Commissioner of Urban Planning and Development Services, in conjunction with the Commissioner of
Works and Emergency Services, the Task Force to Bring Back the Don and affected Ward Councillors be requested to
undertake a full consideration of options, including flooding, groundwater and soil remediation, to re-route the Don River
and that a special meeting of experts and interested citizens be convened and that studies previously prepared on this
subject be made available.
The Committee reports, for the information of Toronto Community Council, having:
(1)requested the Acting Commissioner of Urban Planning and Development Services to report directly to Council for its
meeting on July 27, 1999:
(a)on the source of any additional funds required to implement the Committee's Recommendation 1(a) respecting an
expansion of the consultative process along similar lines as that implemented for the F.G. Gardiner East Dismantling
Project; and
(b)in consultation with TEDCO and Ward Councillors, on an amended Recommendation to replace Recommendation (5)
of the report (June 28, 1999) from the Commissioner of Urban Planning and Development Services; and
(2)received a presentation given by Beate Bowron, Urban Planning and Development Services.
Background
At its meeting on July 12, 1999, the Planning and Transportation Committee gave consideration to the report ((June 28,
1999) from the Commissioner of Urban Planning and Development Services providing a planning direction for the Port
Lands which outlines:
-an urban design and open space framework;
-options to improve access to the Port Lands for all modes of transport;
-opportunities to allow for a wider mix of land uses while protecting, and allowing for expansion of the existing
industrial base; and
-an implementation strategy and various tools which can be used to help achieve the revitalization of the area.
and recommending that:
(1)City Council adopt in principle the planning directions outlined in the report "Unlocking Toronto's Port Lands:
Directions for the Future";
(2)the boundaries of the Port Lands Part II Official Plan Area be amended to include all of Tommy Thompson Park and
the Ashbridges Bay Sewage Treatment Plant;
(3)the Commissioner of Urban Planning and Development Services carry out a public consultation process over the next
two months to solicit comment on the "Unlocking Toronto's Port Lands" report including the Port Lands Community
Forum, other community groups, BIAs, area landowners, industrialists and other businesses;
(4)City Council request the Ontario Municipal Board at its September 3, 1999 hearing on the East Bayfront Official Plan
and Zoning By-law to amend the East Bayfront Zoning By-law 1997-0184 to repeal the permission for 4500 sq.m. of retail
development per lot;
(5)City Council endorse the hiring of a consultant to undertake a study of Land Management Partnership models for the
Port Lands. The estimated $100,000 required for this purpose could be cost-shared between the City and TEDCO;
(6)this report and the recommendations of the Planning and Transportation Committee be forwarded to the July 15, 1999
meeting of Toronto Community Council and that Toronto Community Council forward this report, its recommendations
and the recommendations of Planning and Transportation Committee to City Council for its meeting of July 27, 1999; and
(7)all future reporting on the new Official Plan for the Port Lands be sent directly to the Planning and Transportation
Committee, as this study is of City-wide interest.
The Committee also gave consideration to the following reports/communications:
-(July 9, 1999) from Tim W. Bermingham, Blake, Cassels & Graydon respecting the Home Depot Appeal to the OMB
with respect to 429 Lakeshore and 324 Cherry
-(July 12, 1999) from Joan Doiron, Co-Chair, Toronto Pedestrian Committee requesting the Committee to included the
Toronto Pedestrian Committee in the planning process for the Port Lands
-(June 21, 1999) from Paul Young, South Riverdale Community Health Centre forwarding a summary of ideas for the
development of the Port Lands
-(July 12, 1999) from Councillor McConnell and Councillor Layton forwarding the following recommendations:
(1)It is recommended that the further development of the Plan for the Port Lands effectively address the issues below:
-emphasize Carlaw as a potential gateway as well as encourage access to the waterfront for families and children;
-connection could be provided from Carlaw/Commissioners on the west edge of the turning basin to a bridge (floating?
etc.) across the ship channel to the east end of the Cherry Beach area;
-need to provide much better access to the public to the open spaces at Clarke (Cherry) beach for recreational purposes.
Recreation needs of the whole city can be met here and this should be one of the priorities for the new planning;
-need more detail on the greenspace and access in subsequent plans;
-next Planning report to address the poor air quality issues in the area;
-stronger emphasis on the LRT plans;
-consider a "green roof policy" for the Port Lands;
-environmental template/plan including storm water management and food production opportunities should be included
in the plan;
-the wildlife corridor should connect to the spit. Height of buildings should be appropriate for birds. Ornithological
studies should be considered. Songbird pathways should be improved and strengthened in consultation with provincial
birding organizations. Natural habitat and food sources should be enhanced throughout the Port Lands;
-identify the rail options to achieve the goals outlined in the plan such as the re-vitalization of the mouth of the Don
River;
-green performance standards for all lands, developments and activities in the port should be developed and applied;
-a design competition for the entire Port Lands should be considered at appropriate points in the development of ideas;
(2)the Forum urges Council to support the suggestions in the "Unlocking" Report which oppose "big box" uses in the
Port Lands. The Forum supports the removal of the 4500 sq.m. retail permission in the East Bayfront;.
(3)the Forum supports the goal of increasing employment in the Port Lands, including protecting existing industry;
(4)the Forum recommends that the Port Lands Forum be allowed to spawn a business sector sub group which can meet in
parallel with the citizens to facilitate the involvement of as many affected businesses as possible;
(5)the Forum recommends that the City establish and fund a facilitator to assist with the public consultations; and.
(6)the Planning Department, in conjunction with the Task Force to Bring Back the Don, Ward Councillors and the Works
Department undertake a full consideration of options for the Don River re-routing should be undertaken. A special meeting
of experts and interested citizens should be convened to sort out the merits of the options. Full documentation of studies
already done should be made available for this process. Flooding, groundwater and soil remediation issues should also be
considered.
The following persons appeared before the Planning and Transportation Committee in connection with the foregoing
matter:
-James W. Harbell, obo Setiao and Redpath Sugars,
-Ruth Richardson, Leves Ponds
-Stan Makuch, obo Lasarge Cement
-Ernest Rovet, Barrister & Solicitor
-Tony O'Donohue, Environmental Probe Ltd.
-Dale Martin
-Tim Bermingham, Blake Cassels & Graydon
-Gerald Swinkin, Blake Cassels & Graydon
-Dalton C. Shipway
-Marilyn Roy
-Councillor Jack Layton
-Councillor Bruce Sinclair
The Toronto Community Council also submits the following report (June 28, 1999) from the Commissioner of
Urban Planning and Development Services:
Purpose:
To forward the "Summary Report - Unlocking Toronto's Port Lands: Directions for the Future" which will be before the
Planning and Transportation Committee at its meeting of July 12, 1999.
Source of Funds:
Not applicable.
Recommendations:
It is recommended that Toronto Community Council:
(1)Consider the recommendations in the attached report "Summary Report - Unlocking Toronto's Port Lands: Directions
for the Future" dated June 28, 1999 from the Commissioner of Urban Planning and Development Services" addressed to
Planning and Transportation Committee.
(2) Forward its recommendations and those of the Planning and Transportation Committee to City Council for its
meeting to be held on July 27, 1999.
Comments:
At its meeting of December 16 and 17, 1998, City Council directed the Commissioner of Urban Planning and Development
Services to undertake a Part II Planning Study for the Port Lands.
The "Summary Report - Unlocking Toronto's Port Lands: Directions for the Future" is attached as Appendix 1. The
direction to develop a new plan for the Port Lands came from Toronto Community Council in the context of a report on the
Official Plan and Zoning By-law amendment application for a Home Depot store at Cherry Street and Lake Shore
Boulevard East.
As the new plan for the Port Lands will have city-wide implications due to the size and significance of the area, this matter
has been forwarded to Planning and Transportation Committee for comment, but without deputations. Deputations will be
heard at the July 15, 1999 meeting of Toronto Community Council which will forward its recommendations and those of
Planning and Transportation Committee to City Council for its meeting of July 27, 1999. Future reports will be submitted
directly to the Planning and Transportation Committee.
Contact Name:
Michael Major
Telephone: (416) 392-0760
Fax: (416) 392-1330
E-Mail: name@toronto.ca
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Appendix A
June 28, 1999
To:Planning and Transportation Committee
From:Commissioner of Urban Planning and Development Services
Subject:Summary Report - Unlocking Toronto's Port Lands: Directions for the Future (Ward 25 - Don River)
Purpose:
To provide a planning direction for the Port Lands which outlines:
-an urban design and open space framework
-options to improve access to the Port Lands for all modes of transport
-opportunities to allow for a wider mix of land uses while protecting, and allowing for expansion of the existing
industrial base
-an implementation strategy and various tools which can be used to help achieve the revitalization of the area
The Directions report, which will be submitted under separate cover, will be the subject of public consultation over the
next two months leading to the presentation of the final recommendations for a new Official Plan for the Port Lands to City
Council at the end of 1999.
Source of Funds:
It will be necessary to allocate funds in the amount of $100,000.00 for a study to be undertaken by the City in partnership
with TEDCO to investigate Land Management Partnership models for the Port Lands. This study will assist the City in
identifying the most appropriate model to guide and attract reinvestment to the Port Lands. Funding for the study could be
cost-shared between TEDCO and the City.
Recommendations:
It is recommended that:
(1)City Council adopt in principle the planning directions outlined in the report "Unlocking Toronto's Port Lands:
Directions for the Future".
(2)The boundaries of the Port Lands Part II Official Plan Area be amended to include all of Tommy Thompson Park and
the Ashbridges Bay Sewage Treatment Plant.
(3)The Commissioner of Urban Planning and Development Services carry out a public consultation process over the next
two months to solicit comment on the "Unlocking Toronto's Port Lands" report including the Port Lands Community
Forum, other community groups, BIAs, area landowners, industrialists and other businesses.
(4)City Council request the Ontario Municipal Board at its September 3, 1999 hearing on the East Bayfront Official Plan
and Zoning By-law to amend the East Bayfront Zoning By-law 1997-0184 to repeal the permission for 4500 sq.m. of retail
development per lot.
(5)City Council endorse the hiring of a consultant to undertake a study of Land Management Partnership models for the
Port Lands. The estimated $100,000 required for this purpose could be cost-shared between the City and TEDCO.
(6)This report and the recommendations of the Planning and Transportation Committee be forwarded to the July 15,
1999 meeting of Toronto Community Council and that Toronto Community Council forward this report, its
recommendations and the recommendations of Planning and Transportation Committee to City Council for its meeting of
July 27, 1999.
(7)All future reporting on the new Official Plan for the Port Lands be sent directly to the Planning and Transportation
Committee, as this study is of City-wide interest.
Background:
At its meeting of December 16 and 17, 1998, City Council directed the Commissioner of Urban Planning and Development
Services to undertake a Part II Planning study for the Port Lands. This study was recommended to address:
-a number of diverse interests in the area including development applications for residential, retail warehouses, the
proposed 2008 Olympic Athletes' Village, recreational and open space interests and the need for transportation
improvements;
-the request by area businesses for a comprehensive plan for the area to help them make long term business and
investment decisions;
-the need for a plan which would support a reinvestment strategy for the area; and
-the need to address the interests of the new Toronto Port Authority in maintaining its Port operations and protecting for
shipping on the Central Waterfront.
Comments:
In March, 1999 City planning staff held a public open house and participated in a Community Forum hosted by area
Councillors Layton, McConnell, Bussin and Jakobek to solicit community ideas on the future of the Port Lands. In
addition, planning staff participated in three Reinvestment Workshops hosted by Economic Development staff and
attended by local businesses. The preliminary conclusions from the Economic Development workshops are attached as
Appendix 1 to this report. Planning staff have also consulted with staff from all City Service Areas, SETIAO, the Task
Force to Bring Back the Don, Toronto Regional Conservation Authority, individual landowners, industrialists and other
businesses to solicit comments. Staff have received numerous letters and communications from interested groups and
individuals forwarding ideas for the future of the Port Lands.
1.The Port Lands Today
The Port Lands are unique within the City of Toronto. The majority of this 400 hectare (1,000 acre) site is in public
ownership, primarily in City ownership through TEDCO with substantial parcels in Provincial and Federal ownership. The
Port Lands include a large amount of parkland and open space: the North Shore Park, Tommy Thomson Park and the
Baselands at the north end of Tommy Thompson. This is the only area in the amalgamated city where road, rail and
shipping meet.
The area is characterized by land intensive uses and businesses which take advantage of the proximity to the downtown,
and access to both the Don Valley Parkway and Gardiner/Lake Shore Corridor. Existing businesses include aggregates,
salt, recycling, cement batching, Toronto Hydro (the area's major employer) and film/studio uses. In spite of its prime
location, only 3,000 jobs are located in the Port Lands and 45% of the land is vacant.
2.Directions
The Directions report sets out a comprehensive plan to take advantage of the significant opportunities for reinvestment and
development in the area and ways to address some of the challenges.
The Directions report is focussed on three organizing principles: a Structure Plan including a system of green corridors,
natural areas and parks and other aspects of the built environment; placemaking; and transportation directions.
Structure Plan: The structure plan sets out a framework for development identifying a streets and blocks pattern, major
view corridors and view termini and major features of the Port Lands, natural or man-made, to be protected and enhanced.
The structure plan identifies green corridors, natural areas and parks and buildings on the "Greening the Port Lands" report
prepared by the Waterfront Regeneration Trust. The proposed open space plan for the Port Lands envisions:
-a continuous waterfront promenade, interrupted only where heavy industry and shipping use of the dockwall make the
promenade impractical or unsafe
-a ring of parks along the waterfront similar to the waterfront park system being built in Harbourfront
-natural areas such as the mouth of the Don River, Tommy Thompson Park, the Baselands (at the north end of Tommy
Thompson) and the east end of the North Shore Park, providing habitat zones and areas for the City to achieve some of its
environmental objectives
-more parks, such as McCleary Park on Lake Shore Boulevard East, which provide for active recreation and play space
-recreational pathways, like the Martin Goodman Trail, which provide continuous off-road bike and pedestrian trails
from Cherry Street and Lake Shore Boulevard, south to the North Shore Park and south of the Ashbridges Bay Sewage
Treatment plant to the Eastern Beaches.
The second major portion of the report addresses the issue of Places in the Port Lands. Encompassing 400 hectares of land,
the Port Lands presents the opportunity to accommodate a diverse mix of uses to provide activity in the area seven days a
week, 24 hours a day. This large land area and the separation of areas by major waterways allow ample opportunity to
provide buffers between diverse uses. Following is a brief description of the six major Places proposed for the Port Lands.
The Quays and Inner Harbour District - Polson and Cousins Quay are extraordinary waterfront development sites - this
place is identified for a wide mix of uses (with the eventual relocation of some heavy industrial uses) to create a diverse
urban community where people work, play and live.
Cherry Street Corridor - this corridor is an important gateway to the Port Lands and will become one of the area's main
streets with a range of commercial uses.
Port Lands Business District - between Cherry and Saulter Streets, this area will attract business and lighter industrial uses.
Industrial Employment District - from Saulter Street to Leslie Street, an area for a broad range of employment uses, in
addition to what has been traditionally considered industrial, opportunities for expansion of the film/studio uses already in
this area.
Leslie Street Corridor - like Cherry Street, Leslie Street is an important gateway to the Port Lands. This green street will be
characterized by wide landscaped setbacks and recreational trails.
Port and Shipping District - the working heart of the Port Lands, the lands around the Turning Basin and the unserviced
lands south of the Ship Channel are reserved for heavy industrial, land intensive uses, many of which rely on shipping.
The vision identified for the Places in the Port Lands will allow the City to focus investment in each of these areas which
can best benefit the predominant use in each area or revitalize largely vacant areas. For example, south of the Ship Channel
investment can be concentrated on the convergence of rail, ship and truck access to this area. Along the Cherry Street
Corridor, the City can pursue streetscape improvements and work with local retailers and service providers to
accommodate stores and restaurants to provide amenities to the people who work in the area.
The report also outlines transportation directions which describe opportunities and options to improve access to the Port
such as:
-improvements at Cherry Street and Lake Shore Boulevard East to allow for the extension of Queen's Quay West,
creation of a gateway and accommodation of the naturalized mouth of the Don River
-transportation improvements and creation of gateways at the Don Roadway, Carlaw Avenue and Leslie Street
-the southward extension of the Don Roadway and potentially a bridge across the Ship Channel on the Don Roadway
alignment
-the realignment of Unwin Avenue and connection as a public road which can accommodate truck traffic to Leslie Street
-improvements to the local street grid within the Port Lands in keeping with the framework provided by the Structure
Plan and Open Space Plan
3.Fitting In
Although the proposals set out above accommodate a very diverse mix of uses, my position on large retail warehouses in
the Port Lands remains unchanged from my November, 1998 report on the proposed Home Depot at Cherry Street and
Lake Shore Boulevard East. The Port Lands are not planned to become a destination shopping area and retail warehouses
are not an appropriate waterfront use. These uses have been and continue to be accommodated in other areas of the city
where they fit within the planned structure.
The Port Lands have the potential of growing into an exciting, diverse urban community- with a strong and expanding
employment base - quite unique in the new City of Toronto. Large and smaller scale retail warehouses do not fit with this
long term vision. Market studies to date, show that, on their own, individual "big boxes" do not damage the economic
health of existing retail strips. However, agglomerations of two, three or more, may have a negative impact.
This is an issue not only in the Port Lands, but in the East Bayfront as a whole. In the East Bayfront, the by-laws currently
before the Ontario Municipal Board permit 4,500 square metres per lot, based on the recommendations of the East
Bayfront Working Committee. This permission was intended to encourage new commercial investment appropriate for the
area. However, outside of the Home Depot application which proposed to double the permitted floor area, no development
proposals have come forward.
The Home Depot application, which was refused by City Council, highlights the unintended consequences of this
permission. To rectify the situation, I am recommending that the 4,500 square metre permission be rescinded and that the
Ontario Municipal Board be so advised.
While the market impacts may be subject to debate, large or small scale retail warehouses are car oriented and require large
amounts of surface parking. From a planning point-of-view, they are inappropriate in a waterfront location.
4.Implementation
As has happened in many waterfront cities - London, New York, Boston - the implementation of a bold vision to revitalize
an area as large and as important as the Port Lands requires a focussed implementation plan and a strong commitment both
to the idea of the plan and to its financing. A number of tools are available, or could be pursued to move a plan like this
forward, such as:
-Planning Legislation which allows for designation of Community Improvement Areas and Section 37 Agreements to
help fund infrastructure improvements
-Tax Incentives such as Tax Increment Financing and accelerated tax decreases for commercial users
-senior government funding programs such as the current Federal Millennium funding
These tools, however, have not traditionally been successful on the scale of an area like the Port Lands in the absence of a
single-minded, dedicated agency with the full support and buy-in from both the public and private sectors. In order to
achieve this, I am recommending that the City, in partnership with TEDCO, hire a consultant to investigate various models
for a Land Management Partnership which could include all stakeholders in the area and pool resources to implement an
overall plan and reinvestment strategy for the Port Lands.
After years of debate and many competing interests, it is essential to focus on a vision that can unlock the true potential of
the Port Lands and achieve numerous City objectives. It is essential to take the time to get it right.
5.Public Process
The "Unlocking Toronto's Port Lands: Directions for the Future" report is meant to be a discussion paper to focus
comments and build consensus on the future vision for the Port Lands. Staff of Urban Planning and Development Services
will lead a public consultation process on this paper over the next two months. This process will include input from the
area Councillors and from as many groups as possible including community groups, BIAs, area landowners, SETIAO,
industrialists and other businesses. Planning staff will also continue to consult with all City Services Areas and public
agencies with an interest in the area.
6.Next Steps
I will report to Planning and Transportation Committee in the fall of 1999 on the outcome of the public consultation
process and any changes or refinements to the Directions report as a result of that process and ongoing planning studies for
the area.
Conclusion:
Based on current research and preliminary public consultation, the attached report, "Unlocking the Toronto Port Lands:
Directions for the Future", provides a broad vision for the Port Lands which recognizes the need for a diversity of uses and
the need for a bold vision to unlock this very important part of the Central Waterfront. With ongoing consultation and
identification of an appropriate land management strategy, I am confident that the revitalization of the Port Lands is an
achievable goal.
Contact:
Michael Major
Telephone: (416) 392-0760
Fax: (416) 392-1330
E-mail: mmajor@toronto.ca
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Appendix 1
Port District Investment Strategy Forum
Summary of Key Issues and Recommendations
From the Meetings of June 7th and 17th, 1999
The following issues and recommendations are divided into four categories: Land Use, Zoning, Image and Operational, and
Competitiveness. Participants at the forum sessions did not reach a consensus on the main land issue related to the
introduction of residential uses. The majority of participants opposed the introduction of residential uses into the area. With
respect to the other categories, there was a general consensus in support of the issues and recommendations identified.
Land Use Issues and Recommendations
-Create a stable climate for investment by making a firm Council decision with respect to the land use policies for the
area that will then give businesses some certainty about what is realistically going to happen in the District over the next
ten years.
-Maintain the integrity of the District for industrial and business uses by not permitting the introduction of residential
uses within the District.
-Ensure that land use policies support the retention and growth of core activities in the District which includes
Manufacturing, Distribution Businesses, Recycling, Power Generation and Distribution, Public Works, Cement and
Aggregate Distribution and Port Shipping activities.
-Establish policies that encourage the retention and further growth of Film/ Media/ Recording activities and private
recreation businesses and that address issues related to compatibility between businesses.
-Establish policies that would allow the establishment and growth of new business activities in the waterfront tourism
sector, larger scale retail sector and business services sector. Support the creation of a business campus in the Port District.
-Promote other areas of the City, such as the railway lands and east and west downtown, for additional residential
development as they are better suited for that purpose. Recognize that employment lands must be maintained to ensure the
long term growth of the City as it is becoming increasingly difficult to find industrial/commercial sites in the City.
-Allow mixed uses on the Quays, including residential.
-Use the introduction of residential uses as part of an overall investment strategy as it will assist in the revitalization of
the area and encourage the 24 hour use of the District.
Zoning Issues and Recommendations
-Develop a flexible zoning approach that will allow the introduction of new business uses.
-Ensure that existing operations can continue as permitted uses and do not become legal non-conforming uses.
-Develop Performance Zoning that would address issues of business compatibility related to noise, emissions and storage
and that may have different performance standards for subareas within the District.
Image and Operational Issues and Recommendations
-Build a business park for the next century that will incorporate the features that businesses will need such as
telecommunications, transportation, public transit and an attractive and safe environment.
-Upgrade the image, landscaping and physical infrastructure of the area by adding lighting, curbing, sidewalks, fibre
optic cable, signage, tree planting and other amenities to a level that is competitive with business parks. Recognize the
physical limitations related to introducing landscaping along the dock walls.
-Continue with the "Greening of the Port District" plan as a means of improving the image of the area.
-Commit the financial resources to the strategic transportation improvements that are necessary for the short and long
term functioning and growth of the area as a business district. This would include maintaining and enhancing all of the
existing modes of transportation including rail, shipping and roads. At a minimum, improvements to the Cheery Street
bridge and intersection, the Don Roadway entrance and realignment of Unwin around the cooling channel should be made
in the short term.
-Maintaining and improving public transit access into the Port District is essential to the area's ability to maintain
existing companies and attract future businesses and employees. Establishing regular and rapid service to the area is a
priority and should be undertaken regardless of the TTC's current service standards.
-Establish Cherry and Leslie Streets as the public's main routes into the District while continuing to minimize car, truck
and recreational conflicts by separating traffic modes as much as possible.
-Establish the Lake Shore intersections at Cherry Street, the Don Roadway, Carlaw Avenue and Leslie Street as
transportation gateways into the District and ensure that they are designed to handle truck movements.
Competitiveness Issues and Recommendations
-Look beyond the land use policies for the District and develop mechanisms and programs that:
-provide land and operating costs at competitive levels with other industrial and port areas,
-offset the price premium for constructing in the area,
-allow for longer term leases at fair rates that approach the equivalent of property ownership,
-allow for land price differences for varying uses.
-Recognize and build upon TEDCO' Soil and Groundwater Management Plan in order to address concerns about
possible soil contamination so that companies can have access to reliable information about site conditions, develop cost
effective programs for clean-ups if necessary and obtain financing for future investment. Mechanisms related to the
provision of incentives or compensation for environmental remediation should be developed.
-TEDCO should meet with all existing tenants to review their present and future requirements and to provide help and
encouragement to these businesses to that they will make further commitments and investments.
-A comprehensive marketing strategy for the Port area needs to be developed and implemented in order to attract
businesses to the area.
-Support companies that want to make new investment in the very near future by developing lease structures and terms
that will allow this development to proceed as soon as possible.
-Use business relocation as a strategy for stabilizing the area by moving heavier industrial uses to more suitable and
affordable locations.
-Develop new tools and mechanisms for financing the improvements that need to be made to the area including the
possible use of tax grants under a Community Improvement Plan and tax increment financing.
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The Toronto Community Council reports, for the information of Council, having also had before it during consideration of
the foregoing matter, the report (July 1999) from Urban Planning and Development Services, titled "Unlocking Toronto's
Port Lands - Directions for the Future", which was forwarded to Members of Council under separate cover.
The Toronto Community Council also submits the following joint communication (July 10, 1999) from Councillors
McConnell and Layton, addressed to the Planning and Transportation Committee and Toronto Community
Council:
As directed by Council, we convened a meeting of the Portlands Forum to discuss the new planning document for the
portlands. The group met within two days of the release of the document to provide initial comment and reaction to the
report. Notes and recommendations are below and we hope that you will adopt them.
We thank the participants for their dedication in joining us on yet another beautiful Saturday afternoon to discuss this
important area of the city.
Recommendations:
Here are the areas of consensus which were identified be conveyed from the Portlands Forum in the form of
recommendations:
(1)It is recommended that the further development of the Plan for the Portlands effectively address the issues below:
-Emphasize Carlaw as a potential gateway as well as encourage access to the waterfront for families and children.
-Connection could be provided from Carlaw/Commissioners on the west edge of the turning basin to a bridge (floating?
etc.) across the ship channel to the east end of the Cherry Beach area.
-Need to provide much better access to the public to the open spaces at Clarke (Cherry) beach for recreational purposes.
Recreation needs of the whole city can be met here and this should be one of the priorities for the new planning.
-Need more detail on the greenspace and access in subsequent plans.
-Next Planning report to address the poor air quality issues in the area.
-Stronger emphasis on the LRT plans.
-Consider a "green roof policy" for the Portlands.
-Environmental template/plan including storm water management and food production opportunities should be included
in the plan.
-The wildlife corridor should connect to the spit. Height of buildings should be appropriate for birds. Ornithological
studies should be considered. Songbird pathways should be improved and strengthened in consultation with provincial
birding organizations. Natural habitat and food sources should be enhanced throughout the portlands.
-Identify the rail options to achieve the goals outlined in the plan such as the re-vitalization of the mouth of the Don
River.
-Green performance standards for all lands, developments and activities in the port should be developed and applied.
-A design competition for the entire portlands should be considered at appropriate points in the development of ideas.
(2)The Forum urges Council to support the suggestions in the "Unlocking" Report which oppose "big box" uses in the
Portlands. The Forum supports the removal of the 4500 sq.m. retail permission in the East Bayfront.
(3)The Forum supports the goal of increasing employment in the portlands, including protecting existing industry.
(4)The Forum recommends that the Portlands Forum be allowed to spawn a business sector sub group which can meet in
parallel with the citizens to facilitate the involvement of as many affected businesses as possible.
(5)The Forum recommends that the City establish and fund a facilitator to assist with the public consultations.
(6)The Planning Department, in conjunction with the Task Force to Bring Back the Don, Ward Councillors and the
Works Department undertake a full consideration of options for the Don River re-routing should be undertaken. A special
meeting of experts and interested citizens should be convened to sort out the merits of the options. Full documentation of
studies already done should be made available for this process. Flooding, groundwater and soil remediation issues should
also be considered.
Meeting Notes of the Portlands Forum, Jimmy Simpson Community Centre, July 10th, 1999.
Approximately 35 people were in attendance, representing residents especially from south Riverdale, Corktown, port
businesses, retail businesses in south Riverdale and Corktown.
After introductions by meeting Chairs Pam McConnell and Jack Layton, Mike Major -- the chief planner for the area --
presented the newly released report: "Unlocking Toronto's Portlands".
Considerable discussion followed:
Here is a selection of the issues / questions raised in the discussion of the "Unlocking" Report (these are in bullet/note
form):
1.Foot of the spit and Marina -- let's open it up to the public, provide more access for the public to visit, flow through the
site, connect to Leslie Street Spit more easily, etc.
2.Carlaw's connection into the Portlands could be a special place, with lots of potential. It's also an area which is park
deficient.
3.There's no way to get to the waterfront from s. Riverdale to the waterfront safely and easily, without a car. This could
be improved.
4.Concerns by industry about the impact of residential adjacent to industrial activities
5.There was considerable variation of views about what to do with the mouth of Don River. Essentially, the three options
were: (i) leave it as is, (ii) redirect the Don River through the 480 Lakeshore East site, with a marsh, (iii) redirect the Don
to the south east, into and through the ship channel to a large marsh east of Cherry beach in the outer harbour.
6.There was considerable variety in people's views on the place and extent of residential development within the
Portlands.
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The Toronto Community Council, reports for the information of Council, during consideration of the foregoing matter,
having also had before it the following report/communications, and a copy thereof is on file in the office of the City Clerk:
-(July 9, 1999) from Mr. Tim W. Bermingham, Blake, Cassels & Graydon obo Home Depot
-(July 13, 1999) from Mr. Michael J. Thomas, Executive Director, (QUEBA) Queen East Business Association
-(July 13, 1999) Mr. John Wilson, Vice-Chair, Task Force to Bring Back the Don
-(July 14, 1999) from Mr. Tony O'Donohue, Environmental Probe Ltd.
-(July 15, 1999) from Mr. John Miolla, Commodore, Outer Harbour Sailing Federation
-(July 14, 1999) from Mr. Larry Whatmore, Director, Ontario Sailing Association
-(July 14, 1999) from Mr. Babak Abbaszadeh, Commodore, St. James Town Sailing Club
-(July 6, 1999) from Mr. Bill Mackenzie, Toronto Windsurfing Club
-(July 14, 1999) from Mr. John D. Morand, CEO and General Manager, Toronto Port Authority
-(July 15, 1999) from Mr. Peter C. Cotton, Member of the Board, Aquatic Park Sailing Club
-(May 14, 1997) from Mr. Dalton Shipway
-(July 14, 1999) from Ms. Linda Torney, President, Toronto and York Region Labour Council
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The following persons appeared before the Toronto Community Council in connection with the foregoing matter:
-Mr. James Harbell, Stikeman & Elliott;
-Mr. Peter Smith, Port Lands Citizen Action Committee;
-Mr. Dalton C. Shipway, Watersheds United;
-Mr. Gerald S. Swinkin, Blake, Cassels & Graydon;
-Mr. Paul Dineen TABIA & OCBIA;
-Ms. Linda Torney, Labour Council of Toronto/York;
-Mr. Dale Martin, United Castan;
-Mr. Bill Mackenzie, Toronto Windsurfing Club;
-Mr. N. E. Davidson, Ted Davidson Planning & Development;
-Mr. Stanley M. Makuch, Cassels Brock & Blackwell;
-Mr. Jerry Sprackman, J. Sprackman The Docks;
-Mr. Warren Sorensen, Sorensen Gravely Lowes Planning Associates Inc.; and
-Mr. Jim Neff, Toronto, Ontario.
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