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Staff Report STAFF REPORT April 6, 2006 To: Policy and Finance Committee From: Lou Di Gironimo, General Manager, Toronto 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
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