STAFF REPORT

April 6, 2006

To: Policy and Finance Committee

From: Lou Di Gironimo, General Manager, Water Brenda Librecz, General Manager, Parks, Forestry and Recreation Dr. David McKeown, Medical Officer of Health, Toronto Public Health

Subject: Beach Postings in 2005 and Actions to Improve Water Quality at City Beaches (Wards 6, 13, 14, 20, 30, 32 and 44)

Purpose:

To provide an update on beach postings in 2005, and possible options to improve the water quality at selected beaches in the short term.

Financial Implications and Impact Statement:

The capital cost associated with the design and construction of a gull deterrent system for Centre Island Beach is estimated to be $100,000.00 (net of GST). Funding in the amount of $100,000 (net of GST) is available through reallocation in the approved 2006 Parks, Forestry and Recreation Capital Budget - Park Development (CPR-117-36).

The estimated $10,000 operating cost for the disassembly of the gull deterrent system for Centre Island Beach, at the end of the 2006 beach season, and the estimated $80,000.00 (net of GST) in operating costs required to implement a waterfowl and gull deterrent program for Bluffer’s Park Beach will be funded from the approved 2006 Parks, Forestry and Recreation Operating Budget. The approved 2006 Parks, Forestry and Recreation Operating Budget will be increased by $90,000 (net of GST) through an IDC charge to the approved 2006 Toronto Water Operating Budget (Cost Centre WW2055 – Complex Systems), for wastewater infrastructure maintenance required in 2006. Enhanced waste, recycling, beachcombing and beach monitoring will be performed by Parks, Forestry and Recreation staff within the current Operating Budget resources. The recommended Beach Management Symposium can be convened with no new City funding, and external agency funding will be sought for this purpose.

Annual operating costs of an estimated $100,000 (net of GST) for the assembly and disassembly of the gully deterrent system for Centre Island Beach and the implementation of a waterfowl and gull deterrent program for Bluffer’s Park Beach will be considered in the preparation of the 2007 - 2 -

Parks, Forestry and Recreation Operating Budget, once an assessment of the approach has been completed at the end of the 2006 beach season.

Additional costs which may arise from the recommendation of additional measures related to the development of an Integrated Beach Management Strategy will be detailed in subsequent reports and forwarded for consideration with future budgets.

The Deputy City Manager - Chief Financial Officer has reviewed this report and concurs with the financial impact statement.

Recommendations:

It is recommended that:

1. The General Manager, Parks, Forestry and Recreation, in collaboration with the General Manager, Toronto Water and the Medical Officer of Health expand the existing gull and waterfowl management programs to waterfront beach areas and implement the program, in consultation with affected stakeholders, aimed at improving local water quality conditions at affected beaches; including i) a “gull-focussed” deterrent system for the Centre Island Beach area in advance of the 2006 beach season, where consideration will be given to designing and installing a system similar to that used at beaches within the City of Ottawa; ii) a multi-pronged waterfowl and gull deterrent program for the Bluffer’s Park Beach area, consisting of: employing birds of prey, dogs and noise makers; expanding the existing Canadian Wildlife Service sponsored waterfowl transfer and egg oiling program; and a focussed public education and communications campaign advising park users against feeding of birds; and iii) enhanced waste, recycling, and beachcombing programs and monitoring by Parks, Forestry and Recreation of areas leased to concessions, boat clubs and marinas including Bluffer’s Park Marina;

2. a) The Deputy City Manager, Fareed Amin, in collaboration with the General Manager, Toronto Water, the Medical Officer of Health, the General Manager, Parks, Forestry and Recreation and the Chief Planner and other public agencies undertake the development of an Integrated Beach Management Strategy, in consultation with affected stakeholders, for waterfront beaches, with an initial focus on Sunnyside Beach, to: i. identify long term recreational end-use objectives, ii. identify other management objectives such as improving aquatic habitat, repair or replacement of the breakwall, and mitigation of beach erosion, iii. assess current approaches to and levels of beach maintenance, iv. review the appropriateness of existing beach designations, v. recommend, where appropriate, siting of new beaches, and - 3 -

vi. identify the necessary measures, their associated capital and operating cost implications and prepare a proposed implementation schedule, to support the implementation of the Integrated Beach Management Strategy; and b) The Deputy City Manager, Fareed Amin, in collaboration with the General Manager, Toronto Water, the Medical Officer of Health, the General Manager, Parks, Forestry and Recreation and the Chief Planner report to the Policy and Finance Committee upon completion of the Integrated Beach Management Strategy identified in Recommendation 2 (a);

3. The General Manager, Toronto Water, in collaboration with the Medical Officer of Health and the General Manager, Parks, Forestry and Recreation convene a Beach Management Symposium in Toronto directed at municipal staff across the Great Lakes Basin to discuss the latest advances in beach management issues and share in the dissemination of information and discussion of successes achieved in improving beach water quality conditions across the Basin;

4. Funds be provided from the Park Development Project (CPR 117-36) in the 2006 Parks, Forestry and Recreation Capital Budget to construct the “gull-focussed” deterrent system for Centre Island Beach;

5. The approved 2006 Parks, Forestry and Recreation Operating Budget be increased by $90,000 gross, $0 net, funded through an interdepartmental recovery from Toronto Water;

6. The General Manager, Toronto Water, seek external agency funding to support the Symposium noted in Recommendation (3), including the Great Lakes and St. Lawrence Cities Initiative; and

7. The appropriate City officials be authorized and directed to take the necessary action to give effect thereto.

Background:

City Council, at its meeting of June 14, 15 and 16, 2005, in considering Clause No. 12 in Report No. 6 of the Works Committee, titled “Beach Postings in 2004 (Wards 6, 13, 14, 20, 30, 32 and 44)” requested that the General Manager of Toronto Water, report back to Works Committee on the Western Beaches and on possible options to improve the water quality in the short term.

Comments:

There are several factors affecting water quality conditions at the City’s ten designated waterfront beaches including:

(i) beach water quality impairment, as measured by E. Coli bacteria levels, in accordance with the Province’s Beach Management Protocol; (ii) nuisance algal growth, as a result of elevated nutrient levels; - 4 -

(iii) feces of gulls and waterfowl (geese, ducks) in the water, along the water’s edge and on the beach; and (iv) litter/debris.

The following report presents a summary of beach water quality conditions for the 2005 swimming season, an overview of the factors affecting beach water quality conditions, an overview of options to improve water quality conditions, in the short term, at selected beaches and insights to longer term beach management issues across the waterfront.

Beach Water Quality Impairment In the early 1980s, the Medial Officer of Health frequently posted the City’s waterfront beaches as unsafe for swimming due to elevated bacteria levels. This led to extensive water quality monitoring, to determine the main factors responsible for impaired water quality. Early investigations suggested that feces from waterfowl were a significant source of the contamination along with stormwater discharges from the separated storm sewer systems and combined sewer overflows (CSO). Subsequent investigations determined that CSOs and storm sewer outfalls which discharge directly to the nearshore area were the primary cause of degraded water quality at the certain beaches. In addition, other sources such as streams and rivers, dry weather discharges from sewers, accumulations in sediments, and feces from domestic animals and wildlife have varying degrees of importance, depending on site specific conditions.

These investigations led to the construction of two underground storage tanks in the Eastern Beaches, in 1990 and 1995, respectively, to intercept and treat the direct discharges from storm sewers and combined sewer overflows. As a result of marked improvements to water quality along this beach area, an underground storage facility was proposed along the Western Beaches. The Western Beaches Storage Tunnel was placed in operation in 2002, intercepting the direct discharge from 8 combined sewer overflows and 2 storm sewer discharges. However, there have been a series of operational problems with this facility, and as a result of recent modifications, the facility is expected to be fully operational for the 2006 beach season. Two remaining storm sewer outfalls, discharging to the west of Sunnyside Beach, are being intercepted through the construction of the Ellis Avenue/Colborne Lodge Drive Stormwater Management Facilities, being constructed in 2006. Through the Environmental Assessment study, supporting the Tunnel, computer simulation results, indicated that beach postings would decrease from about 90% to about 30%. The level of improvement in water quality achieved in the Eastern Beaches, were not possible with the construction of the Tunnel, because the Humber River was projected to be a continued source of pollution to this stretch of waterfront.

Through the development of the City’s Wet Weather Flow Master Plan, it was determined, that notwithstanding the implementation of all the measures contained within this Plan, improvements in water quality to those rivers which originate upstream of the City limits, were not possible within the 25 year period of the Plan implementation. In the Humber River, for example, where approximately 85% of the watershed extends beyond the City limits, improvements in water quality to achieve the Provincial Water Quality Objective for body contact recreation (so as not to impact beach water quality along the Western Beaches) would be dependent on a collective effort by all municipalities, communities and affected agencies which share a responsibility in the ecosystem health of this watershed. This was not considered - 5 - practical in the short term. Beach protection piers, therefore, were identified in the Master Plan as measures which could achieve beach water quality objectives.

In addition, at a few beaches where all outfalls are controlled or their discharges have been eliminated, beach water quality has remained resistant to achieving beach water quality objectives, leading to new field and laboratory investigations described below which indicate that gulls and waterfowl have a significant role in causing the residual impairment.

Beach Water Quality Monitoring Water quality samples are collected at five locations from each of the beach areas (consistent with the Ministry of Health’s Beach Management Protocol), daily by Toronto Water staff, each summer from early June to Labour Day. The samples were analyzed by the Ministry of Health Laboratory, and on weekends by the Toronto Water Laboratories. Consistent with the Protocol, the City’s Medical Officer of Health (MOH) will post a beach as unsafe for swimming, if the geometric mean of samples collected over a two day period, at a given beach, exceed the Provincial Water Quality Objective (PWQO) of 100 E. Coli per 100mL.

A summary of beach posting statistics for the 2004 and 2005 beach seasons is provided in Table 1.

TABLE 1 SUMMARY OF BEACHES POSTED AS UNSAFE FOR SWIMMING (2004 & 2005) Beach Area 2004 2005 (from west to east) # Days % # Days %

Marie Curtis Park East Beach 71 75 % 59 61%

Sunnyside Beach1 64-80 68-85% 67 69%

Hanlan’s Point Beach 4 4% 7 7% Centre Island Beach 49 52% 50 52% Ward’s Island Beach 8 8% 11 11% 6 6% 18 19%

Woodbine Beach1 15-21 16-22% 14 14% Kew-Balmy Beach1 28-30 29-32% 20 21%

Bluffer’s Park Beach 83 88% 92 95%

Rouge Beach 68 72% 84 87%

NOTE: 1 – represents beaches where beach names were merged in 2005 to reflect local historical significance and active use areas

- 6 -

The beach posting data show that five of the beaches consistently show good to excellent water quality conditions listed in order of increasing beach posting frequencies:

• Hanlan’s Point Beach • Ward’s Island Beach • Woodbine/Ashbridges Bay Beaches • Cherry Beach • Kew/Balmy Beach

It can be generalized, that these beaches are away from any direct discharges, and with the exception of Kew/Balmy Beach, that few birds and geese are present in these beach areas. Further, these beaches are exposed to the open water of , and because there are no direct pollution sources, lake circulation currents assist in improving local water quality conditions. It is no surprise that all of these beaches with the exception of Kew/Balmy Beach, were designated to fly the Blue Flag, an internationally recognized and respected award for beaches that achieve high standards in: water quality, environmental management, environmental education, safety and service. It is expected that, as various water quality improvement initiatives are implemented, particularly through the City’s Wet Weather Flow Master Plan, the City can expect additional Blue Flags to be flying at other waterfront beaches in the future.

Conversely, five of the beaches have consistently experienced poor water quality and are listed in order of increased beach posting frequencies:

• Centre Island Beach • Park East Beach • Sunnyside Beach • Rouge Beach • Bluffer’s Park Beach

Impacts of River Flows on Beach Water Quality East Beach, Sunnyside Beach and Rouge Beach are all affected by river inputs, from watersheds which extend beyond the City limits. Figure 1 shows a turbidity (suspended sediment) plume from the Humber River, extending across the Sunnyside Beach area after a major storm, demonstrating the impact these river discharges can have on water quality across the waterfront. Further, water quality data represented as percentage exceedance of the Provincial Water Quality Objective for swimming (where E. Coli levels exceed 100 counts / 100 millilitre), drawn from a technical report supporting the development of the City’s Wet Weather Flow Master Plan, is summarized in Table 2. The data show that beaches to the west, closest to the Humber River mouth, are impacted more than beaches to the east. Generally, a 10% decrease in percentage exceedance in the water quality objective is observed by beach area, from west to east. That is, water quality data collected from west to east: Gzowski Beach, Sunnyside Beach, Budapest Park Beach and the Argo Rowing Club exceeded the water quality objective for swimming by 73%, 63%, 52% and 43%, respectively. Further, in 2005, average E. Coli levels in the Humber River were approximately 3,000 counts/100 mL, 10 fold higher than the average 300 counts/100 mL measured at Sunnyside Beach. The above, coupled with lake circulation and water quality modelling undertaken in the development of the City’s Wet Weather Flow - 7 -

Master Plan, demonstrates that the Humber River flow negatively impacts water quality conditions along this beach area.

Impacts of Gulls and Waterfowl Feces on Beach Water Quality Unfortunately, large numbers of gulls and waterfowl are found, during the swimming season, at a number of beach areas and their feces (in water and along the water’s edge) are a constant source of bacteria under dry weather conditions. Feces left along the beach and adjacent park areas, are washed off during wet weather events, representing a “local” diffuse source of E. Coli bacteria. Figure 2a shows a large number of geese in the designated swimming area within the Sunnyside Beach area on a typical summer day and Figure 2b shows geese feces, along the active beach area, close to the water’s edge.

TABLE 2

Percentage Exceedance of Beach Water Quality Objective (E. Coli) at Western Beaches (1985-2001) (from WWFMP Waterfront Technical Report - 2003) Year Beach Areas Average Across (from west to east) Beach Areas Gzowski Sunnyside Budapest Argo Rowing 1985 65 65 1986 56 56 1987 79 48 64 1988 66 60 56 52 59 1989 52 44 41 39 44 1991 92 79 58 58 72 1992 45 54 36 36 43 1993 63 54 45 36 50 1994 92 83 75 66 79 1995 84 77 77 69 77 1996 83 75 50 50 65 1997 66 59 58 16 50 1998 84 77 53 44 65 1999 62 35 22 12 33 2000 92 57 35 25 52 2001 83 58 73 49 66

Average 74.1 63.2 52.2 42.8 59

In 2004, a microbial source tracking study was initiated by Toronto Water, in collaboration with Environment Canada’s National Water Research Institute (NWRI) to help identify principle sources of bacterial contamination at beaches, where there are no direct pollution sources, but yet - 8 -

continue to be posted at high frequencies (e.g. Centre Island Beach). The study used DNA fingerprinting and antibiotic resistance arrays (ARA) to identify and quantify the distribution of E. Coli sources. Centre Island Beach and Kew Beach were chosen for the first year study. Over 2,500 E. Coli isolates were collected from beach waters and sand over the summer of 2004. Multiple lines of evidence indicated that fecal droppings from gulls and Canada geese are the predominant source of fecal pollution contaminating Centre Island Beach and Kew Beach. However, tests also identified high counts of E. Coli in some beach sands which could suggest that beach sand is serving as a reservoir of E. Coli that is re-suspended in beach waters under certain wave conditions. A report based on this work has recently been completed by NWRI (Edge, et. al., 2006) and received by Toronto Water.

In the summer of 2005, a similar study was begun at Sunnyside Beach (including the Humber River) and Bluffer’s Park Beach. Based on preliminary results (T. Edge, personal communication, 2006) Sunnyside Beach appears to be impacted by multiple sources. While the Humber River appears to be the dominant source, the overflows from the Western Beaches Storage Tunnel, as a result of the operational problems noted above, were also sources, as were wildlife: particularly geese and ducks. At Bluffer’s Park while there appear to be a number of sources present, the preliminary results indicate that feces from gulls and waterfowl are a significant source and that E. Coli levels are not associated with a human or municipal wastewater source (T. Edge, personal communication, 2006). Further, a scoping level investigation of beach sand, close to the water’s edge, also showed elevated E. Coli levels in the sediments. This suggests that the beach sand is serving as reservoir of E. Coli that is resuspended in beach waters under certain wave conditions. Sediment accumulations of E. Coli have become an intensive area of research across the Great Lakes.

Given the operational problems with the Western Beaches Storage Tunnel in 2005, and a continued interest in identifying the relative contributions from known pollution sources, the study will continue at Sunnyside Beach in 2006. Further, it is proposed that a more detailed site assessment be undertaken at Bluffer’s Park in 2006 to help identify and quantify the relative contributions from local diffuse sources.

Impacts of Breakwalls on Beach Water Quality Breakwalls such as the ones located at Sunnyside Beach and Centre Island Beach, while providing shelter against lake-wave action for swimmers (and paddlers at Sunnyside Beach), also confine lake circulation and can impair water quality by promoting a build-up of bacteria. At Sunnyside Beach, elevated nutrient levels permit excess algal growth, which wash up on shore, as unsightly algal mats (see Figure 3), and decay causing odours. The algae growing across this stretch of beach area are not only unsightly, but are also not conducive to swimming.

Measures to Improve Beach Water Quality The City’s Wet Weather Flow Master Plan, has defined the long term measures needed to improve beach water quality, their relative effectiveness especially where E. Coli discharges from the major tributaries directly affect beaches (- Marie Curtis Park, Humber River – Western Beaches, Rouge River – Rouge Beach) and provides the context for considering short- term measures.

- 9 -

Implementation of the City’s Wet Weather Flow Master Plan, particularly those measures directed at improving water quality along the waterfront, which were identified for implementation within the first 10 years of the Plan’s implementation schedule, should continue to be a priority. In developing the Plan, it was demonstrated that at beaches such as at Marie Curtis Park East and Sunnyside Beach, all land based measures contained in the Plan’s 25 Year Implementation Schedule together with the beach protection piers were needed to achieve beach water quality objectives. A beach protection pier concept, for Sunnyside Beach, at the mouth of the Humber River, is illustrated in Figure 4. This concept should be pursued through an environmental assessment process, where all options to mitigate the impacts of local sources and the flow from the Humber River will have to be assessed. This is consistent with recommendations from TRCA staff to their Board, based on additional public consultation held in the spring of 2004 on this concept which stated: “all options for resolving pollution in the Western Beaches, caused by the Humber River discharge, be evaluated in further detail as part of the Environmental Assessment process for developing an integrated set of solutions for this problem. The analyses for options should include additional examination of previous findings of the WWFMMP study, further consultation with upstream communities and the Ministry of Environment on the status of new stormwater technologies required to remediate E. Coli in stormwater runoff, and evaluation of options that address multiple objectives for Humber Bay, including Western Beaches protection and those outlined in the TRCA Board submission”.

Based on the recent laboratory (Microbial Source Tracking) and field investigations noted above, there are a number of beaches where bird feces are a significant beach pollution source and measures, outside of the Wet Weather Flow Master Plan, must be considered to mitigate the impacts of these sources and improve beach water quality conditions.

a) Centre Island Beach – Gull Deterrent Program As noted earlier, gulls appear to be the principle source of pollution at Centre Island Beach. The breakwall, while sheltering the beach from wave action, also serves as a nesting and roosting area for gulls. Improvements in beach water quality will not be realized, unless their impacts can be mitigated. This problem is not unique to Toronto, however, and Toronto Water staff have contacted staff at the City of Ottawa, who also experienced a similar problem at two of their popular beach areas: Mooney’s Bay Beach and Brittania Beach. In 1990, as part of the City of Ottawa’s Gull Management Program, overhead wires (as have been successfully employed at Toronto City Hall’s ) were used to deter birds from flying into the affected beach areas. In this approach, mono-filament fishing line is tensioned between steel wires, hanging over the swimming and beach area, from 7 metre high aluminum flag poles. This measure, complemented with public education to eliminate food sources namely advising against the feeding of gulls and on the proper disposal of food waste; have contributed to significant improvements in beach water quality conditions. Note also that this approach will be implemented in 2006 in a City of Hamilton beach as a pilot project, which provides an opportunity for interaction with the City of Toronto.

It has been estimated that constructing a similar system at Centre Island Beach would cost about $100,000. However, there are operational costs associated with the annual setup and disassembly of the system (before and after the beach season). Implementation of this type of system would require public consultation with affected stakeholders, after a design concept has - 10 -

been developed. It is proposed that the installation of this type of system be pursued for implementation in advance of the 2006 beach season.

b) Bluffer’s Park Beach – Waterfowl and Gull Deterrent Program Based on the preliminary microbial source tracking work undertaken at Bluffer’s Park Beach, that while not as dominant a source as at Centre Island Beach, bird feces are a significant source of pollution at this beach. Large numbers of gulls and geese colonize the active beach area and the park area to the west (near the parking lot where they are regularly fed food scraps by visitors to the park). The implementation of an integrated waterbird and waterfowl management program, to deter birds away from the beach area, is recommended for the 2006 beach season. There are currently several waterfowl and gull deterrent approaches being used within and around the City. The Parks, Forestry and Recreation Division annually employs trained dogs to spur geese into flight at selected golf courses, undertakes a goose and gull egg oiling program along waterfront parks with the Toronto and Region Conservation Authority and participates in a waterfowl transfer program along the Lake Ontario north shore (through the Canadian Wildlife Service and the Toronto and Region Conservation Authority with other waterfront municipalities and local private airports). Where park improvements are undertaken along the waterfront, the park is redesigned to minimize opportunities for geese to nest by discouraging easy movement between the land and the water through habitat modification. Private operators, such as the Toronto City Centre Airport, also employ birds of prey such as falcons or hawks and noise makers to deter waterfowl and gulls.

It is proposed that a multi-pronged program employing all of these techniques where practical, coupled with a focused public education campaign advising against and informing park users of the problems associated with the feeding of birds, be implemented within the Bluffer’s Park Beach area as a pilot project in 2006. The program effectiveness should be assessed through monitored changes in beach water quality and reductions in the numbers of birds present within the beach area. The Parks, Forestry and Recreation Division plans to enhance the level of waste and recycling pickup and beachcombing operations in 2006 to try and minimize the number of geese attracted to, and occupying the park.

It is estimated that the implementation of this type of program would cost about $80,000, consisting of about $40,000 for a private operator to employ birds of prey, dogs and noise makers; $20,000 to expand the Canadian Wildlife Service sponsored waterfowl transfer and egg oiling program; and $20,000 to develop and implement a public education/communications campaign. It should be noted that the egg-oiling program occurs in late March and early April; hence the 2006 program which will be expanded by staff of the Parks, Forestry and Recreation Division and the Toronto Region Conservation Authority but it may not be fully expanded until the spring of 2007.

c) Sunnyside Beach A number of “short term” options have been considered to improve water quality conditions at Sunnyside Beach. The following describes three design concepts which could be implemented to help improve “local” water quality conditions. - 11 -

1) (a) Impervious Curtain Along Existing Breakwall – Complete Beach Area An impermeable breakwall could be constructed along the existing breakwall as shown in Figure 5. The concept examined, would install a curtain from the existing western most end of the breakwall to east of Sunnyside beach where the gap is the narrowest, just west of the Palais Royal. A 1 m deep sill would be constructed at the western opening to allow small craft to enter the sheltered water course. A pump at the eastern end of the curtained area would provide offshore water to flush out the area and prevent the Humber River plume from entering the watercourse. Flushing would also be required to provide circulation of the water and prevent stagnant conditions from forming with subsequent low dissolved oxygen conditions (anoxic), odours and shoreline fouling.

To protect the structure from waves, substantial reinforcement is required; alternatives include sheet-piling or an armourstone structure similar that used for the new Dragon Boat racing course to the east, but located in shallow water. However, the capital cost for the liner and structural reinforcement has been estimated at $20 million for a two kilometre length of breakwall and would require completion of a federal environmental assessment.

Such a structure effectively reinforces the existing breakwall without enhancing its functions. It may however, be more appropriate to replace the existing breakwall and to move it further off shore to provide more functionality for the local boating communities. It was concluded that this was not a ‘short-term’ option.

1) (b) Impervious Curtain Along Existing Breakwall – Short Beach Section by Pavilion As a shorter – term option, the impervious breakwall concept with pumping could potentially be applied to a very short stretch of breakwall directly in front of the Pavilion at Sunnyside Beach. For a 400 – 500m section, the capital costs estimates are approximately $6 million. It may be possible to construct such a system for the 2006 beach season, if it were designated a “demonstration project” and if the design, approvals and tendering process can be accelerated.

2) Curtained-off Swimming Area with UV Disinfection System Curtained-off swimming areas have been used in Ontario at beaches in reservoirs such as Fanshawe Reservoir (near London) and at Valens Reservoir (near Hamilton). A geotextile material is used for the curtain which separates water in the swimming area from water in the reservoir. E. Coli levels in the swimming area are reduced by pumping the isolated swimming water through an irridation system and recirculating the treated water back to the swimming area. A sketch of the ultra-violet (UV) concept as it might be applied to Sunnyside Beach is provided in Figure 6.

The advantage of this system is it’s relatively low cost, given the ease of installation. However, it will require annual maintenance incurring operational costs associated with energy requirements for pumps and the UV disinfection system. Capital costs of such a system are estimated, based on an analysis of the Fanshawe facility, at $400,000 to $500,000 with annual operating costs estimated at $25,000 to $50,000. This, however, does not consider the operational/maintenance impacts associated with curtains which may need to be repaired as a result of lake wave action. This type of ongoing maintenance requirement, presents a - 12 -

disadavantage. Further, the size of the facility (away from shore) would have to be limited to allow room for canoeists and boaters currently using this space behind the breakwall.

The facility, if designated as a “Demonstration Project” could be built and implemented in 2006. Public consultation with applicable stakeholders, after a design concept has been established, would be necessary.

d) Enhanced Beach Maintenance (City Wide) Trash, debris, and particularly residual food stuffs are one known factor which particularly attract waterbirds, such as gulls, to beach areas. The Parks, Forestry and Recreation Division will improve park maintenance during summer 2006 (enhanced waste, recycling, and beachcombing programs & monitoring food related concessions) at all beach areas, with an initial focus on Center Island, Bluffers Park, and Sunnyside Beaches. The Parks, Forestry & Recreation Division will enhance inspection of all boat clubs and marinas under its control to ensure that the best possible practices in waste management and grey water handling are being followed on these leased properties.

e) Integrated Beach Management Strategy (City Wide) Beach water quality issues observed at Sunnyside Beach, highlight the need for an integrated Beach Management Strategy, at this beach and arguably across the waterfront. Competing water end-uses at Sunnyside Beach, for example, present challenges in improving water quality to beach water quality standards, which extend well beyond the control of local sewer discharges. The large numbers of gulls and waterfowl found in this beach area, are at odds with the notion of a “clean beach” acceptable for swimming from both an aesthetic and water quality perspective. In terms of waterbirds and waterfowl, one key question concerns what factors attract them to swimming beaches and will the proposed measures outlined above be sufficient to improve water quality. The breakwall, while providing shelter from wave action for swimmers and rowers, may also confine the area and exacerbate water quality conditions behind the breakwall and may also help contribute to the nuisance algal growth observed. Recent investigations on the breakwall have identified a number of sections requiring repair. However, the merits of repairing these sections, replacing the breakwall with another structure, perhaps further offshore, and/or removing the breakwall altogether, should be assessed with input and consultation with all affected stakeholders.

While previous municipal works have attempted to improve water quality along this stretch of waterfront, by intercepting sewer discharges, the significance of the Humber River as a dominant pollution source to this waterfront area, must also be recognized. Further, as projected through the development of the Wet Weather Flow Master Plan, it is highly unlikely, that efforts by all jurisdictions and agencies engaged in protecting the ecosystem health of the Humber River are likely to achieve improvements in Humber River water quality to match the requisite beach water quality standard, within the foreseeable future. Initiating an environmental assessment, as proposed in the Master Plan, for the construction of a beach protection pier to help mitigate the impacts from the Humber River, should be dependent on confirmation of the recreational end uses and ecosystem objectives (e.g. fish and wildlife habitat) envisioned for this stretch of waterfront into the future. This could be addressed through the development of an Integrated Beach Management Strategy. - 13 -

Similarly, a review should be undertaken of the siting of all existing beaches and the merits of assigning designated beach status to beaches in close proximity to river mouths and this should be further assessed through public consultation. This, too, could be undertaken through the development of such a strategy.

The Integrated Beach Management Strategy will focus on all beaches listed in Table 1, with an initial emphasis on Sunnyside Beach.

Hosting a Workshop on Beaches Issues As a part of the SOLEC (State of the Lakes Ecosystem Conference) held in Toronto, in the fall of 2004, the City of Toronto assisted in organizing a workshop which focussed on beach management issues including protocols for beach sampling; and the roles that sampling methodology, sediment accumulation and wildlife have in contributing to beach postings. As a recent literature review indicates, significant advances have been made in understanding these phenomena at specific beach areas around the Great Lakes. It is proposed that the City of Toronto convene a workshop for municipal representatives across the Great Lakes to discuss the latest advances and beach management issues. Particularly useful, will be the dissemination of information and discussion of successes achieved in improving beach water quality conditions across the basin, among the affected municipalities. Given that beaches are an issue of interest and priority for the Great Lakes and St. Lawrence Cities Initiative, of which our Mayor is vice- chair, it is proposed that the Great Lakes and St. Lawrence Cities Initiative should be approached to determine their interest in supporting this workshop.

Conclusions:

An overview of beach water quality for the 2005 swimming season has been presented. The data show that five of the beaches continue to demonstrate good to excellent water quality conditions listed in order of increasing beach posting frequencies: Hanlan’s Point Beach, Ward’s Island Beach, Woodbine/Ashbridges Bay Beaches, Cherry Beach and Kew/Balmy Beach. These beaches are away from any direct discharges, and with the exception of Kew/Balmy Beach, generally few birds and geese are present in these beach areas. Further, these beaches are exposed to the open water of Lake Ontario, and because there are no direct pollution sources, lake circulation currents assist in improving local water quality conditions. All of these beaches, with the exception of Kew/Balmy Beach, were designated to fly the Blue Flag, an internationally recognized and respected award for beaches that achieve high standards in: water quality, environmental management, environmental education, safety and service. It is expected that, as various water quality improvement initiatives are implemented, particularly through the City’s Wet Weather Flow Master Plan, the City can expect additional Blue Flags to be flying at other waterfront beaches in the future.

Conversely, five of the beaches have consistently experienced poor water quality and are listed in order of increasing beach posting frequencies: Centre Island Beach, Marie Curtis Park East Beach, Sunnyside Beach, Rouge Beach and Bluffer’s Park Beach. Of these beaches, Marie Curtis Park East Beach, Sunnyside Beach and Rouge Beach are all affected by river inputs, from watersheds which extend beyond the City limits. Improvements in water quality at these beaches - 14 -

will not be realized until water quality improves in these watersheds, or other measures are implemented to mitigate the impacts of these river flows to the waterfront. While Centre Island Beach and Bluffer’s Park Beach are remote from any direct pollution sources, recent work undertaken by Toronto Water in collaboration with Environment Canada’s National Water Research Institute has demonstrated that bird feces can be a significant pollution source at beach areas. While work is continuing at Bluffer’s Park Beach, the study concluded that bird feces are the most significant source of pollution at Centre Island Beach.

It is recognized that implementation of the City’s Wet Weather Flow Master Plan, particularly those measures directed at improving water quality along the waterfront, which were identified for implementation within the first 10 years of the Plan’s implementation schedule, should continue to be a priority for the City. However, a number of short term options directed at improving beach water quality conditions have been reviewed. Subject to public consultation, with the affected communities and stakeholders, it is recommended that (i) a fish line system suspended from flag poles around designated beach areas be installed at Centre Island Beach for the 2006 beach season; (ii) a multi-pronged waterfowl and gull deterrent program be implemented for the Bluffer’s Park beach area for the 2006 beach season, consisting of: employing birds of prey, dogs and noise makers; (iii) the existing Canadian Wildlife Service sponsored waterfowl transfer and egg oiling program be expanded to all beach areas with a priority to the Bluffers Park Beach area; and (iv) a focused public education and communications advising park users against feeding of birds be implemented.

Options to improve water quality at Sunnyside Beach, include: an impervious curtain along the existing breakwall with a lake water pump system; and a curtain system with pump and UV disinfection system have also been reviewed. Sunnyside may see only small improvements in the short term with such measures; most advances will come through projects carried out in the medium- to long-term which address river-flow impacts and which need considerable environmental assessment, further technical evaluation, user community and public input and regulatory agency review and approval. Given the number of competing uses at Sunnyside Beach, it is recommended that an Integrated Beach Management Strategy be developed for Sunnyside Beach, in advance of implementing of any new works directed at improving water quality to beach water quality standards along this waterfront area.

An Integrated Beach Management Strategy should also be developed citywide for all beaches. The Parks, Forestry and Recreation Division will improve park maintenance during summer 2006 through enhanced waste, recycling, and beachcombing programs and by monitoring food related concessions at all beach areas, with a particular focus on Center Island, Bluffers Park, and Sunnyside Beaches.

Beach management issues are an area of interest and concern among waterfront municipalities across the Great Lakes Basin. There have been several recent advances related to the impacts of beach sampling protocols on beach posting statistics; and the roles that sampling methodology, sediment accumulation and wildlife have in contributing to beach postings. It is proposed that the City of Toronto convene a workshop for municipal representatives across the Great Lakes to discuss these latest advances and share in the dissemination of information and discussion of - 15 -

successes achieved in improving beach water quality conditions across the basin.

Contact:

Michael D’Andrea, P. Eng. Ron de Burger Director Director Water Infrastructure Management Healthy Environments Toronto Water Toronto Public Health Tel: 416-397-4631 Tel: 416-392-1356 Fax: 416-338-2828 Fax: 416-392-0713 E-mail: [email protected] E-mail: [email protected]

Paul Ronan Director Parks Parks, Forestry & Recreation Division Tel.: 416-396-4490 Fax: 416-396-4957 E-mail: [email protected]

Lou Di Gironimo Dr. David McKeown General Manager Medical Officer of Health Toronto Water Toronto Public Health

Brenda Librecz General Manager Parks, Forestry & Recreation Division

List of Attachments:

Appendix 1: Figure 1 Humber River Plume Impacting Sunnyside Beach Appendix 2: Figure 2(a) Waterfowl in Designated Swimming Area at Sunnyside Beach Figure 2(b) Waterfowl Droppings at Sunnyside Beach Appendix 3: Figure 3(a) Algal Mats and Debris on Shoreline (Civic holiday weekend - 2005) at Sunnyside Beach Figure 3(b) Close-up of Algal Mats at Sunnyside Beach Appendix 4: Figure 4 Beach Protection Landform Concept at Humber River Mouth Appendix 5: Figure 5 Impermeable Breakwall Concept at Sunnyside Beach Are Appendix 6: Figure 6 Curtained-off Area with UV Irradiation Treatment System Concept for - 16 -

Sunnyside Beach

Appendix 1

Figure 1 Humber River Plume Impacting Sunnyside Beach

- 17 -

Appendix 2

Figure 2(a) Waterfowl in Designated Swimming Area at Sunnyside Beach

Figure 2(b) Waterfowl Droppings at Sunnyside Beach

- 18 -

Appendix 3

Figure 3(a) Algal Mats and Debris on Shoreline (Civic Holiday Weekend – 2005 ) at Sunnyside Beach

Figure 3(b) Close-up of Algal Mats at Sunnyside Beach - 19 -

Appendix 4

Sunnyside Strachan Ave Strachan .

Proposed Barrier Landforms

Figure 4 Beach Protection Landform Concept at Humber River Mouth

- 20 -

Appendix 5

Figure 5 Impermeable Breakwall Concept at Sunnyside Beach Area

- 21 -

Appendix 6

Figure 6 Curtained - off Area with UV Irradiation Treatment System Concept for Sunnyside Beach