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--- L!

ach and bluffs, west of Part L-. ....~-. . LAKE ONTARIO CREENWAY STRATE

ince aboriginal peoplefirst settled on the banks find ways to ensure that the waterfront becomes of Lake Ontario, the watefront has provided clean, green, accessible, connected, open, useable, Sgenerations of people with a place to live, sources of diverse, affordable and attractive. food, means of transportation, drinking water, recreation To help implement the recommendations of and more. It is a precious asset, but has suffered over the Royal Commission, the Ontario Government the yearsfrom the pressures of use and abuse from human created the Waterfront Regeneration Trust in June activities along the shoreline and in the watersheds 1992 under Bill 1. that feed it. This strategy shows how we can regenerate The mandate of the Trust is to: the waterfront to ensure that its values are protected, enhanced and restored. - facilitate the establishment of a waterfront trail and associated green or open spaces from Burlington Bay to the Trent River; BACKGROUND - coordinate programs and policies of the The Lake Ontario Greenway Strategy builds on the Government of Ontario and its agencies foundation established by the Royal Commission relating to waterfront lands; on the Future of the Toronto Waterfront, which was headed by the Honourable David Crombie. - advise the Province on any matters relating to Between June 1988 and June 1992, the Commission the use, disposition, conservation, protection undertook extensive research and analysis, and and regeneration of waterfront lands; held public hearings and workshops on a range of issues affecting the waterfront, culminating in the - serve as a resource centre and information East Beach, Port Hope publication of an interim report Watershed and a clearinghouse relating to waterfront lands; final report Regeneration. The Royal Commission found that Lake - consult with the public to determine the public Ontario is a significant provincial resource, similar interest in the environmental integrity of the in significance to the Niagara Escarpment, the waterfront lands; and Oak Ridges Moraine, Georgian Bay and other major natural features. People who came to the - do such other things as the Government of hearings described the myriad ways in which they Ontario may direct. use and enjoy the waterfront. They expressed their deep concerns about environmental degradation, loss of cultural heritage, and inappropriate development patterns. They urged the Commission to ..

.e.

f ONTARIO GREENWA

In coordinating this Lake Ontario Greenway promote greater awareness, understanding, 0 Protect Strategy, the Waterfront Regeneration Trust is access and recreational use of the waterfront fulfilling its mandate as described in Bill 1, and and encourage community pride and participa working with waterfront partners to pursue the tion in its regeneration; directions established in Regeneration. 0 promote economic activities and employment on the waterfront that are compatible with the GOAL AND OBJECTIVES other Greenway objectives; and

v The goal of the Lake Ontario Greenway Strategy is @ foster cooperation in cost-effective public and @ ~estore to foster commitment to actions that will regenerate private initiatives by reducing jurisdictional a healthy and sustainable waterfront that is clean, gridlock, sharing resources, and coordinating green, accessible, connected, open, useable, diverse, waterfront activities. affordable and attractive. These principles are embodied in the five The ecosystem approach recognizes that objectives of the Greenway Strategy. Using an humans are part of ecosystems, and that everything - ecosystem approach, the Strategy is intended to: economic, social and environmental - is connected to everything else. To work towards healthy and 0 protect the physical, natural and cultural sustainable ecosystems, the ways that activities are attributes associated with the Lake Ontario planned and decisions are made must change. Promote understanding and Greenway; Instead of working with separate disciplines, link- recreational use ages and integration must be given higher priority. @ identify restoration needs and methods and Instead of managing resources piecemeal, regener- encourage landowners, communities and ation activities must incorporate the full spectrum agencies to undertake regeneration activities; of protection, enhancement and restoration.

Q) Promote compatible economic activity w 8 Co-operate 18 -

AKE ONTARIO GREE WAY STRATE

The Greenway Strategy shows how the ecosystem approach can be applied to a specific geographical area - the north shore of Lake Ontario, in the context of the watersheds that drain to the lake.

THE GREENWAY

The Lake Ontario Greenway encompasses the lands P and waters that show a direct ecological, cultural or economic connection to the waterfront from Burlington Bay to the Trent River (see Map 3). It extends into the lake, generally to the ten metre depth within which most of the nearshore coastal processes and fishery activities occur. Inland, the Greenway generally extends to the first significant Ecosystem approach rise in elevation, which often corresponds to the former Lake Iroquois shoreline. Where significant t natural areas extend up major river valleys, they - protect and link habitats, are usually included. The greenway concept is gaining increasing - enhance environmental quality popularity in Canada and the United States as a means to integrate environmental regeneration - provide recreation activities close to home and recreation opportunities into the urban and rural fabric. Greenways can: - create more liveable and healthy communities, and - enhance business and tourism opportunities This Greenway Strategy for the Lake Ontario waterfront shows how these benefits can be realized through stewardship, restoration, and careful planning. The Waterfront Trail forms the backbone of

20 - INTRODUCT the Greenway, in a setting that includes protected Hamilton-Wentworth Region's Vision 2020 is a natural areas, cultural heritage, appropriate water- comprehensive statement of community goals for front development, and compatible commercial the next two decades that is now being implement- ventures. Thus, the Lake Ontario Greenway encom- ed. A strategy is underway along the Trent-Severn passes all the components of the ecosystem in Waterway to enhance culture, tourism, recreation which we live - the social and economic aspects as and economic activities while protecting environ- well as the environmental ones. mental quality. Since 1972, the Great Lakes Water Quality Agreement and the Canada-Ontario Agreement CONTEXT have provided a framework for programs to restore the health of the Great Lakes by the United States The Lake Ontario Greenway Strategy is occurring and Canadian governments, as well as the province in the context of a number of related and comple- of Ontario and municipalities. mentary initiatives. For example, the reform of the Recent and ongoing planning initiatives and Ontario Planning Act is providing a land use plan- policy development by many regional and local ning framework that is supportive of many of the municipalities along the Lake Ontario shoreline objectives of the Greenway Strategy (see Chapter demonstrate increased commitments to waterfront Four). Strategic planning initiatives for the Oak access and regeneration. Ridges Moraine and the Greater Toronto Area are The Waterfront Trail contributes to a network intended to direct urban growth so that environ- of existing and emerging greenways and inter- mental values are sustained. Land use change on regional trails, including the Bruce Trail on the the Niagara Escarpment has been guided by the Niagara Escarpment, a number of river valley trails Niagara Escarpment Plan since 1985. (e.g., Credit, Ganaraska), greenways in Hamilton- Wentworth and Niagara regions, Eastern Ontario trails, the Loyalist Parkway in Prince Edward County, and the Seaway Trail on the south side of Lake Ontario.

-21 C c'

I NTRODL

PROCESS PURPOSES OF THE STRATEGY

The Lake Ontario Greenway Strategy is directed by This report was prepared by the Waterfront a steering committee composed of representatives Regeneration Trust on behalf of the steering of the federal, provincial, regional and local committee. It is a summary of work in progress, governments, conservation authorities, and non- a record of steps being taken today to realize government groups, and chaired by Commissioner a shared vision of tomorrow’s waterfront, and David Crombie. Six workgroups undertook extensive a guide for the choices to keep moving in the research and analysis and made recommendations right direction. to the steering committee. Appendix B lists the A great deal of progress has been made since Repor$ on progress steering committee and workgroup participants. the Royal Commission began its work in 1988 - The public was consulted by the Waterfront progress in implementing specific projects; signifi- Regeneration Trust at public hearings in November cant improvements in provincial and municipal 1992 and on an ongoing basis in workshops and policies; and, not least, a striking change in the meetings with interested groups. In addition, valu- way communities view their waterfront. Almost able public input on many matters related to the universally, the waterfront is now recognized Strategy was received by waterfront municipalities as an environmental, community, and economic and conservation authorities in the course of their resource of great value - a resource to be carefully planning and strategic activities. protected, and to be restored to its full poeential These public and agency consultations, as well where necessary. as the experience gained in implementing the In a variety of ways, all levels of government Waterfront Trail and other projects, reinforced the have already demonstrated significant commit- basic thrusts of the Royal Commission on the ments to the Lake Ontario Greenway. Federal Future of the Toronto Waterfront - the need to programs under the Great Lakes Water Quality apply an ecosystem approach to address the over- Agreement, the Canada Ontario Agreement, and lapping circles of environment, economy and the Great Lakes Cleanup Fund are contributing to community; and the need to coordinate the actions the regeneration of Lake Ontario. The Province’s of many existing agencies rather than impose commitment is amply demonstrated by the solutions from above. passage of legislation establishing the Waterfront Regeneration Trust, by adoption of the Royal Confirm the vision Commission’s nine principles and ecosystem approach, and by allocation of funding to the Waterfront Trail and other projects. The commitment of municipalities, conservation authorities, NTAR REENWA STRATE

and community groups is also evident - a commit- GUIDE TO THE REPORT ment measured in time and energy, in plans for the future, in projects, and in dollars. Following this Introduction, Chapter Two describes Within this context, the Greenway Strategy is The Waterfront of Today - its values, resources, a signpost along the way. It reports on the progress issues and opportunities. Chapter Three, The that has been made to date and establishes a Waterfront of the Future, highlights some of the consensus-based blueprint for further actions. It considerable progress that has already been made, is not intended to be a formal statement of govern- and outlines the steps that must be taken to accom- ment policy, but rather to provide a context for plish our shared vision of a regenerated waterfront. setting priorities, guidance on ways to achieve a Chapter Four, Implementation, summarizes the shared vision, and an information base to assist many existing and emerging tools available to decision-making. implement the Strategy, and outlines the potential The Strategy may be used by different agencies roles of key agencies and groups. Establish a blueprint and groups in a variety of ways. For example, feder- A separate report titled Lake Ontario Greenway al and provincial agencies may use the Strategy in Strategy: Next Steps provides a more detailed assess- establishing funding criteria for programs and ment of the landscape units along the north shore priorities for research and other activities. The of Lake Ontario. For each unit, there is a descrip Strategy can be used by conservation authorities to tion of the landscape character, a summary of the guide watershed and shoreline stewardship. Regional patterns of change and associated issues, a statement and local municipalities may use it in developing of regeneration goals, and a listing of short-term their plans, policies and projects, and in reviewing opportunities and actions. the effects of proposed developments on the waterfront. The Strategy can also provide information and guidance to assist non-government groups with their projects. In summary, the Strategy is intended to assist the many waterfront partners to act in a cooperative, efficient and focussed manner, so that the progress made to date will continue to grow and be sustained.

Outline the tools

24 - ChaPt3i0L: THEWATERFRONT OF TODAY

Lynde Creek Marsh, Whitby REE WAY STRATEC

he Lake Ontario wateont that we see today Yet every storm that washes away a seawall, every is the combined result of powerful natural and dandelion that pushes through a crack in a sidewalk, is a T cultural forces, which continue to shape its reminder that natural forces retain their power. If we are future. Neither land nor lake is static - constant change to create a future waterfront that provides a safe and is a vital part of this ecosystem, whether expressed over pleasant habitat for ourselves, along with a sustainable days, or seasons, or centuries. habitat for a diverse away of other species, we must learn Over the past two centuries, the pace and rhythm to shape those actions we can control in harmony with of that change has been injluenced 4 human actions the natural forces that we cannot alter. along the lakeshore - cutting trees, hardening the shore, To begin, we must understand the nature of today’s removingfish and adding wastes to the lake waters. waterfront, and the forces that have shaped it. Increasingly, the dominant force within the North Shore ecosystem has become a single species - humankind - using a greater and greater share of the energy and resources of the ecosystem to support its burgeoning population.

Powerful natural and cultural forces shape the waterfron THE M RFRONT OF TODAY

THE GREAT LAKES AND BIOREGIONAL CONTEXTS

Lake Ontario is the fifth and lowest in elevation of the Great Lakes, a location that influences its character enormously (see Figure 1).The watershed area draining directly into Lake Ontario, I for example, is relatively small - only about three times the surface area of the lake itself. But tbe volume of water entering the lake through the Niagara River from the other Great Lakes is very large, some 80% of the total flow into Lake Ontario. As a result, despite the 244 metre depth of Lake Ontario, it takes water an average of only six years to reach the St. Lawrence River. The Great Lakes have other profound effects as well. Their capacity to trap and slowly release heat significantly modifies the climate of the surrounding region, making this part of the continent cooler in summer and milder in winter than other areas at a north and east. As well as permitting the survival of Figure I similar latitude. This moderating effect is especially southern plant life and associated birds and other The Great Lakes pronounced close to the water’s edge. Another wildlife, the mild winters along the Lake Ontario Source: Canada, Environment Canada. climatic effect is the tendency of areas downwind shore often mean open waters and snow-free fields 1987. The Great Lakes from the lakes to receive significantly larger winter that support many types of wintering birds. snowfalls than elsewhere in Ontario. The Great Lakes have also strongly influenced Partly as a result of these climatic effects, the human settlement patterns in this rzgion (see north shore of Lake Ontario acts as the northern Figure 2). The almost universal human tendency to edge of a broad vegetation zone known as settle near the shore probably began with native Carolinian forest. Remnants of these forests of oak, travel routes and seasonal fishing patterns, extended hickory, and other hardwoods are well-expressed into the location of the first trading posts and near the western end of the Greenway, gradually military bases, and was reinforced by early industrial being replaced by more hardy mixed forests to the activities which used water for transportation and

-27 LAKE ONTARIO GREENWA STRATEGY

for mills. The role of the Great Lakes region as an industrial heartland was further strengthened by the development of the St. Lawrence Seaway system, and the electrical generating stations which used Great Lakes water for cooling or to spin turbines. Even when rail, roads and eventually airports supplanted the role of the lakes in trans porting goods, their location conformed largely to the lakeside pattern already established. &l The north shore of Lake Ontario must also .,*..- be viewed in the context of its bioregion - a wedge-shaped area bounded by the Niagara Escarpment, the Oak Ridges Moraine, and the Lake. This area, known as the Greater Toronto Bioregion, encompasses a gently sloping plain tilted southwards to the lake. Of the 35 major watercourses draining into the Greenway, 4 have their sources within or just above the Escarpment area; another 16 have their headwaters in the Oak Ridges Moraine; and the remaining 15 smaller streams draw much of their base flow from sandy deposits associated with the former II Lake Iroquois shoreline. - ... Three centuries ago, almost all of the Bioregion was clad in lofty forests of maple and Figure 2 beech, oak and pine. By the mid:l800s, most of Great Lakes Basin population density the original forest was gone, with the Bioregion Source: adapted from Canada, converted into one of the most productive farming Environment Canada. 1987. areas in the country. Over the past century, The Great Lakes especially the last 30 years, the growth of Canada’s largest urban concentration has spread over a significant portion of the Bioregion, and greatly altered the remaining rural areas.

28 - WATERFRON TODAY LAKE ONTARIO GREENWAY STR EGY

Concern about environmental deterioration Together with the biological and cultural within the Bioregion is not just a recent phenome- context, a complex institutional context has non. Even as early as 1860, the once-abundant evolved within the Bioregion. Along the shore- Atlantic salmon were gone from Lake Ontario, line from Burlington to Trenton, 22 local removing an important food source. By the 1940s, municipalities deliver municipal services and widespread erosion in the sandy hills of the Oak administer the planning system. In the western Ridges Moraine prompted the acquisition of large and central sections of the Greenway, broader- areas by county governments and conservation scale functions are provided by the Regional authorities for tree planting. The Ganaraska Forest Municipalities of Halton, Peel, York and Durham, is one result of these initiatives. Other early plan- and by Metro Toronto. The provincial Office for ning efforts recognized the importance of the the Greater Toronto Area plays a coordinating Moraine to the City of Toronto, as shown on a role in these five regions. To the east, the County 1943 map produced by the Toronto City Planning of Northumberland administers roads, waste Board (see Figure 3). management, tourism promotion and other functions, but does not currently have formal planning responsibilities. Six conservation authorities provide watershed and resource management functions within the Bioregion, together with several provincial ministries. Responsibility for waterfront matters at the provincial level involves primarily the Ministry of Municipal Affairs, Ministry of Natural Resources, Ministry of Environment and Energy, and the h Ministry of Culture, Tourism and Recreation, although many others have specific areas of responsibility. The Waterfront Regeneration Trust, a relatively new agency, has a mandate to provide advice and coordination of waterfront policies and programs.

Figure 3 I943 Regional Greenbelt 3 LAKE ONTARIO GREENWAY STRATEGY

There is also a federal presence along the waterfront, particularly related to ports and harbours, water quality, and fisheries. The primary federal departments involved are Transport Canada, Fisheries and Oceans Canada, Environment Canada, and Canadian Heritage. Lake Ontario fisheries management also involves cooperative efforts between the Province and New York State, and the participation of an international body, the Great Lakes Fishery Commission. Another long-standing institution for Great Lakes issues is the International Joint Commission (IJC) , which makes recommendations on such topics as water quality and water levels regulation. Subsidiary agencies such as the Great Lakes Water Quality Board, the Science Advisory Board, and the International St. Lawrence River Board of Control . ., advise the IJC on specific matters.

THE PHYSICAL ENVIRONMENT

Lake Ontario sits in a cup-like depression in the underlying bedrock of limestone and shale, relatively young and soft rocks which are exposed in a few locations along the shore. Along most of the shoreline, however, the rock has been covered with a mantle of tills and sands from at least four glaciers that have ploughed their way southwards over the past 100,000 years. Some of the best geological records in Canada of the history of those glaciations are found along the waterfront, particularly at Scarborough Bluffs and the Don Valley Brickyard. THE WATERFRONT OF TO'DAY

As the most recent glacier melted away, only Other lake levels produced their own shoreline some 12,500 years ago, it left behind a range of remnants, although not as prominent. A good landforms created by both the scraping actions example of abandoned beaches from the glacial of the ice and the sorting of sediments by the Lake Belleville stage, about 12,000 years ago, melt-waters. These landforms have shaped human is found just south-west of Colborne. For most of uses of the landscape to a large degree - the flat, the next 3,000 years, water levels were lower rich clay plains of Halton, for example, were almost than current Lake Ontario, so many former shore- entirely cleared for farmland, while the steepsided lines exist underwater. For the past 3,500 years, drumlins bf Northumberland have kept much more lake levels on average have been relatively stable, of their native forest. Map 3 provides a brief but water levels still fluctuate considerably on a overview of differences in present-day landforms shorter term. and land uses along the waterfront. As the last in the chain of Great Lakes, the These glacial landforms also form much of the amount of water flowing into Lake Ontario, and bed of Lake Ontario, but the area along the shore- hence the water levels, are greatly influenced line has been considerably modified by the lake. by precipitation throughout the entire Great Lakes The scouring action of the waves moves and sorts basin. Power dams both upstream and down- the finer sediments, often cleaning off bedrock, stream of Lake Ontario can modify these natural creating bluffs along the shore, and depositing fluctuations by only a very small amount, and a sands into beach areas. This unending process can recent report by the International Joint be seen not only along today's lakeshore, but also Commission concluded that further stabilization along abandoned shorelines from periods when of lake levels is neither practical nor desirable. the lake was higher than today. Future management of the shoreline will have to The most prominent of these remnants is the be designed to take into account an irregular and Lake Iroquois shoreline, created about 12,500 unpredictable cycle of water levels that ranges over years ago, which runs parallel to the current north 2 metres over the course of decades, as well as shore a few kilometres inland (see Map 6). normal seasonal fluctuations of up to 0.5 metres. In many areas, this shoreline shows as a prominent wooded bluff, with relatively smooth beach deposits along the base. Transportation planners have made use of these old beaches - both the QEW through Halton and much of Highway 401 from Cobourg to Trenton follow the base of the Lake Iroquois shoreline.

-33 NTAR REENWAk

Dune ridge Future climate changes related to global warming may affect lake levels. While it is difficult to predict the nature or magnitude of Fore dune changes to the current pattern of water level fluctuations at this point, research and modelling studies in the climate change field should be monitored so that effects on Lake Ontario can be addressed appropriately.

SHORELINE PROCESSES wave5 erode As outlined in the Shoreline Management WmrZgroup sand dunes Report in the toolkit, the processes that created and maintain the shoreline we see today are complex and dynamic. The primary driving force for long term shoreline change in this part of Lake Ontario is wave New lake bottom action cutting downwards into the lakebed, which in turn causes bluff erosion and slumping along the shore. The effects of wave action in altering shoreline features arc most apparent during storms in periods of high water levels. A critical factor in determining the rate of shoreline erosion is the controlling substrate, that is, the material that makes up the main body of the lakebed near the shore. As shown on Map 3, nine blows sand and shoreline units have been defined on the basis of dunes rebuild different controlling substrates. While the nature -- of this substrate may be masked along the water’s Figure 4 edge by local deposits of sand or cobble, or by Sandy dynamic beach process shoreline armouring, it provides a basis for understanding the broad effects of shoreline processes.

34 - OF T DAY

Three of the four main types of controlling Convex profile substrate along the Lake Ontario shore are subject to irreversible erosion (i.e. once material is removed, it cannot be replaced): - Erodible bedrock, including both shales and limestone, which erode in a similar manner to 151 cohesive shores; . - Cohesive cobble/boulder tills (composed of glacial materials), which often form a pattern of headlands and bays;

Fine-grained sediments, along the Scarborough Bluffs section only. Concave profile The rate of shoreline erosion varies from 0.1 to 0.75 metredyear over a long-term average (although there is considerable variation), which is relatively low compared to some Great Lakes shores. In general, shoreline units with a bedrock substrate erode more slowly; the fine-grained tills of the Scarborough Bluffs show the highest erosion rates. The only controlling substrate type which can have reversible erosion is dynamic beaches; examples of sandy dynamic beaches are found at Burlington Beach and Presqu'ile. These areas have very deep sand deposits, which can grow or shrink depending on the long-term supply of sediments provided by the adjacent shoreline. As well, these beaches and associated onshore dunes can erode Figure 5 quickly during high-water storm events, with sand Shoreline Profiles temporarily deposited in offshore bars. Over time, this sand will be returned to the beach and dune system. (See Figure 4) Toronto Islands, the

-35 LAK ONTARIO GREENWAY STRATEC

Eastern Beaches and the Western Beaches were originally formed as dynamic beach deposits, but have been so modified that they no longer function k as they once did, largely because of interruptions to the alongshore transport of sand. Another important factor in shoreline process is the type of shoreline profile (see Figure 5). Erosion Most of the shoreline units - those with erodible bedrock or cohesive cobble/boulder controlling substrates - have a convex profile with a nearshore shelf. This shelf helps to protect the shoreline deposition from erosion during moderate and low water levels, Lake and often permits the development of extensive shallow beaches of cobble or sand along the shore. One unit, Scarborough Bluffs, has a steeply sloping concave profile, which provides little protection from wave attack and provides limited beach development. In the shallow waters where wave action is greatest, sediments are transported along the shore in a direction dictated by the angle of the waves. Along the north shore of Lake Ontario, the net transport is westwards from East Point in Scarborough to Burlington; from East Point to Presqu’ile, net transport is eastwards. This along- Pier Beach shore transport is easily interrupted by piers, starvation Lake groynes or lakefills extending into the lake, so that it operates within a series of relatively small littoral cells, and in some shoreline units has been almost completely disrupted. Alongshore transport Impact of shoreline modification on natural shore processes is particularly important adjacent to beach areas. THE TODAY

The nature of the onshore (i.e. the land just Human activities change the face of the shorelin inland from the shore) can have an important modifying influence on shoreline processes: - a consistently higher onshore creates continuous high or low bluffs, while areas of lower shoreline elevation often create wetlands separated from the lake by a barrier beach (such as Frenchman’s Bay and Oshawa Second Marsh); 179C

* shale substrate and onshores along the Halton Historic Shoreline waterfront have created shingle (flat stone) beaches along the shore, while the gravelly tills along the Northumberland coast create sand and cobble (rounded stone) beaches instead;

* eroding bluffs with a high boulder content can - -. -A+-7 1890 “pave” the shoreline and nearshore lakebed -- (i.e. create a surface layer of fallen boulders on Land cleared for agriculture; 4d an, the lakebed), partially protecting headlands rocks on lake bed harvested and slowing erosion, as occurs along much of for aggregate (stone-hooking) the Durham shore;

- river mouths can modify.local processes by adding fine sediments; the Humber Bay shoreline unit is a former river valley flooded by the lake and partly filled with sediments.

Most of the waterfront from the Rouge Rivei Shoreline filled and west to Burlington has been subject to shoreline secured with armourstone; treatment, either through erosion and flood development up to the protection works or through lakefilling. The water’s edge eastern half of the shoreline remains in a fairly natural condition.

-37 ONTARIC GREENWAY STRATEGY

BIOLOGICAL PROCESSES Lake Ontario is very deep and as a result warms WITHIN THE LAKE slowly in the spring. The open lake is also relatively low in nutrients, approaching an oligotrophic In general terms, the use of the waterfront by state. Most of the north shore is exposed to wave fish and other aquatic life is directly related to action and to cold water upwellings which may habitat characteristics, which in turn are related lower nearshore water temperatures very quickly. to the physical processes described above. Four As a result, the open coast habitats are most suit- main types of aquatic habitats have been identified able for pelagic (free roaming) coldwater species - open coast convex profile, open coast concave such as salmon, trout, whitefish, herring, yellow profile, dynamic sands, and sheltered embayments. perch, alewife, smelt and shiners. Coldwater The relationships between shoreline areas fish communities in Lake Ontario have changed and the lake as a whole are also important to dramatically from historic populations as a result biological processes. of over-fishing, water quality and habitat changes, and introduction of foreign species. Populations of most of the sports fish are now maintained by extensive stocking programs, with some natural reproduction in the easterly parts of the Greenway. Open coast habitats with bedrock or cobble/ boulder substrates and convex profiles appear to be particularly suited to coldwater fish communities, since such dominant species as lake trout and lake whitefish typically rely on these substrates with nearby steep drop-offs for successful reproduction. T Headlands, where the greatest aggregations of boulders occur, probably provide the best quality coldwater spawning habitats. The impacts of removal of a large quantity of boulders and slabs from the lake bottom by the historic practice of stone-hooking are not well understood. In most places along the waterfront, evaluation of the productivity and significance of coldwater habitats is hampered by lack of information. THE WATERFRONT OF TODA

Open coast habitats associated with concave declining aquatic plant diversity caused by profiles (i.e. Scarborough Bluffs) and the shifting reduced water clarity. Habitat generalists such as lakebeds associated with dynamic beaches are best carp now dominate most sheltered habitats in the suited to species which broadcast their eggs in western and central sections of the Greenway. The water, such as lake herring, emerald shiner, alewife Presqu’ile Bay area is in much better condition, and smelt. These fish provide an important forage supporting populations of walleye, a species that base for other species, including most of the sports is unusual elsewhere along the coast, although fish. Larger species of fish, such as the salmon historically important. species, also use open coast habitats as travel Tributary habitats along the north shore are corridors during their seasonal movements. closely linked to both warmwater and coldwater Sheltered embayments including river mouths, fish populations in the lake, especially to salmonids lakeshore wetlands, and lakefill parks provide (such as rainbow trout, brown trout, Atlantic warmer water conditions and opportunities for salmon and the Pacific salmons) which migrate development of aquatic vegetation. These areas upstream to spawn. Degraded water quality, block- can support a fish community that includes pike, ages such as dams, and changes in seasonal stream bass, walleye, bullheads, carp, suckers and flow related to agricultural and urban uses within A stone-hooker’s boat, Port Credit minnows. They also provide productive habitat for the watersheds have reduced the value of many a diversity of other wildlife, especially reptile and of these tributary streams. However, most of amphibian populations which may be restricted to the tributary streams in the eastern section of these areas. Most of this warmwater habitat occurs the Greenway still provide excellent habitat, and in four sections of the waterfront - Burlington almost all of the larger rivers have good habitat Bay/Coote’s Paradise, the central area from Rattray remaining in their upper reaches. Marsh to Tommy Thompson Park, in the tributary Shoreline and offshore habitats are also very streams along the Durham coast such as Duffins important to migrant waterfowl and shorebirds, Creek and Lynde Creek, and the Presqu’ile and to wintering waterfowl. Sheltered embayments, Bay/Bay of Quinte area. most notably Presqu’ile Bay, and offshore areas Many of these nearshore areas have been with bedrock substrate such as the Halton shore affected by large quantities of nutrients and fine attract the largest numbers of these birds. sediments (some contaminated with toxins) coming from urban watersheds, by the filling of marshes and shorelines to create new land, and by

-39 LAK ONTARIO GREENWAY STRATEGY

The impact of invading zebra mussels in Lake 3000 Ontario is not yet fully known, but there are indications they are modifying habitat by increasing water clarity, byxompeting for nutrient supply, Burlington by physically clustering on rocky substrates and -Credit R. nearshore structures, and by acting as a food source for wintering waterfowl. Species such as -99-m scaup, scoter, goldeneye, oldsquaw, bufflehead and Mimico coot have changed traditional feeding areas to congregate in areas with hard shale bottoms, -Humber especially along the Halton shore, to take advantage of abundant mussels. .e-. Toronto H. z

0-I md -Trent R. WATER QUALITY: 6 LAKEWIDE AND NEARSHORE a. dr 6 Water quality problems in Lake Ontario are related to three broad groups of pollutants - persistent toxic substances, nutrients, and bacteria. Toxic substances such as organochlorides, heavy metals, and radionuclides are a serious problem when they become concentrated in the food web and cause reproductive or other health problems in fish- eating species. Nutrients such as phosphorus, on the other hand, are not directly toxic but can cause massive blooms of algae, which die off and decay, causing oxygen depletion in deeper waters GUIDELINE as well as taste and odour problems in drinking water and aesthetic concerns along the shore. I975 I980 I985 I990 199s Bacterial pollution, usually related to sanitary YEAR sewage and stormwater, can result in beaches Figure 6 being posted to warn people of health risks PCB concentration trends in forage fish associated with swimming. Source: Ontario Ministry of Environment and Energy, Trent River fish were yellow perch; all others were spottail shiners 40 - TH ATERFRONT OF TODAY

Toxic substances

Levels of most substances have decreased dramatically since the 1970s in lake waters, fish flesh, and wildlife species (see Figure 6). For example, 11 of the 17 organochlorine and chlorobenzene contaminants measured in off-shore waters by Environment Canada have decreased significantly from 1986 to 1990. Of the 41 organic contaminants measured in the Environment Canada offshore monitoring program in 1990, only PCBs remain above provincial criteria for the protection of aquatic life. Continuing efforts will be required to realize the goal of virtual elimination of persistent toxic substances from Lake Ontario. Drinking water quality is monitored for health-related parameters as part of the operations of all municipal water supply plants along the north shore. In addition, the Ministry of Environment and Energy (MOEE) monitors 12 of the 16 plants (see Map 4) for 150 microbiological and chemical - parameters including metals, volatile organics, I YEAR pesticides and radionuclides. The only parameter exceeding Ontario Drinking Water Objectives Figure 7 in 1991/92 was lead, which had elevated levels in Number of double-crested cormorant nests standing water samples in 21 of the 141 samples in Lake Ontario colonies (probably related to plumbing sources). Flushing Source: Environment Canada. water from the tap before using reduced lead levels to within the acceptable range in almost all cases.

41 I RONTO b I

MAP4 SEWAGE TREATMENT PLANTS AND DRINKING WATER SUPPLY PLANTS 5ewage Treatment Plant Capacity ON (1000 cubic mctrcs per day) 0 0-100 -- - Kegional/&unty Boundaly

0 100-200 Oak Ridges Moraine 200-300 0 Niagara Escarpment I 300-400 0 Drinking Water supply Plant rl 4oo+ I- o IO .rn' W' '@mil 4

Ontario Ministry of Environment and Energy, 1935 ERFRONT ODAY

The Lake Ontario Toxics Management Plan Environment Canada monitors a number (LOTMP), developed in 1989 by the governments of contaminants in the eggs of herring gulls, of Canada and the U.S., New York State and Caspian terns, snapping turtles and other wildlife. L-7 -2.- '-1- CT 4 Ontario, identified nine priority persistent toxic Similar to other findings, contaminant levels in substances in the lake. This plan will now form the gulls and terns dropped strongly in the 1970s and basis for the development of a binational eco- early 1980s, and have since stabilized at levels system-based Lakewide Management Plan (LaMP) which do not appear to be now affecting reproduc- for Lake Ontario, with similar LaMPs to be tive success of colonial waterbirds. Snapping turtle developed for the other Great Lakes. The persis- egg data, however, show relatively high levels of tent toxic substances identified by the LOTMP are several toxins at Hamilton Harbour and Lynde being assessed for inclusion in the Lake Ontario Creek, probably related to diet and metabolism. s 5 LaMP, with the goal of virtual elimination of c 0 emissions to the environment. A number of the Nutrients __.?. .._ '. - -! u substances being considered are: c Total phosphorus concentrations in Lake Ontario - chlordane, which has decreased to non- peaked in 1972, and have decreased to meet Lake Ontario detectable levels in open waters; provincial guidelines since 1986. Phytoplankton in the open lake have also decreased by at least - dieldrin and hexachlorobenzene, which are 50% as a result. still detectable but meet all applicable criteria The largest loading of phosphorus to Lake Ontario comes from the upper Great Lakes, and - dioxin and mirex, which are at or slightly above that amount is remaining the same or perhaps the fish consumption guideline; increasing. Nutrients from municipal and industrial sources, which mostly pass through sewage treat- DDT and its metabolites, which are no longer ment plants (see Map 4), have dropped substantially, detectable in the open water. Cormorant with reductions of 50% from municipal sources and populations have rebounded as a result 85% from industrial sources since 1976. (see Figure 7); and - PCBs, which have sharply declined from early 1970s levels, but have levelled off. PCBs are at or slightly above the fish consumption guideline, and exceed the aquatic life criteria in both offshore waters and nearshore forage fish in the central and western sections.

- 43 Lake Ontario

rORONTO

MAP5 1991 TOTAL PHOSPHORUS CONCENTRATIONS IN NORTHSHORE TRIBUTARIES Average Total Phosphorus Concentration (ppm) 0 0.01 - 0.03 (within guideline) - - - RegionaKounty Boundary 0 0.03-0.09 I 0.09+ (3X guideline or more) Oak Ridges Moraine Guideline was established to reduce the likelihood of nuisance algae or Niagara Ewarpment aquatic plants affecting waterways 1 0 10 20 30 40km 4

Source: Ontario MinisUy of Environment and Energy, 1995 WATERFRON

Another major source of phosphorus is run- Areas of Concern off from urban areas and agricultural lands into tributaries. As shown on Map 5, only six of 27 Four Areas of Concern have been identified monitoring stations at river mouths recorded along the north shore of Lake Ontario by the phosphorus levels within the provincial guideline International Joint Commission (see Map 9). These in 1991. Tributary loads have only decreased by Areas demonstrate the largest clusters of water 30%, and are roughly twice the amount quality concerns leading to impairment of beneficial contributed by sewage treatment plants. uses. Contaminated sediments appear to be largely Nearshore phosphorus levels still exceed confined to sheltered embayments within the Areas provincial guidelines, particularly along the west- of Concern, although other embayments and river ern and central parts of the Greenway, because mouths require further assessment. For each of of contributions from tributary watersheds the four Areas of Concern, a Remedial Action Plan and local inputs. Nutrient pollution in nearshore (RAP) process is underway. (See also Action 2.5) areas causes excessive growth of algae along shoreline rocks, which causes aesthetic problems such as fouled beaches and taste and odour problems in drinking water. These concerns are widespread but appear to be most pronounced from Burlington to Oshawa.

Bacteria

While several different standards for bacterial pollution are used along the north shore, the posting of beaches to advise people not to swim is common across the waterfront. In most cases, high bacterial counts are related to stormwater runoff, combined sewer overflows, and faulty septic tanks. Efforts to resolve these problems are underway in many communities, but progress is slow and expensive. Unfortunately, inconsistencies in standards and data collection make it difficult to compare beach postings over time or in different areas. Sources of water pollution

-4 ONTARIO GREENWA STRA EC

Hamilton Harbour Port Hope Harbour

- largest concentration of heavy iron and - problems restricted to turning basin and steel industries in Canada; west slip areas of harbour;

- major use impairments associated with: - contamination of bottom sediments by point and nonpoint source pollution, radionuclides, heavy metals, PCBs; combined sewer overflows, contaminated sediments, - sediments classed as low-level radioactive waste shoreline and land use development; requiring federal resolution; and

- 75% of original wetland and shallow wate - RAP planning underway but implementation habitats eliminated; and not yet begun.

- RAP implementation well underway Bay of Quinte Metro Toronto and Region - large drainage area, mostly rural and small urban centres; - includes six watersheds from Etobicoke Creek to Rouge River; - use impairment arising from: diffuse agricultural inputs of sediments and - urbanization has contributed to phosphorus, impairments from: sewage treatment plants, heavy metals and organic compounds, industrial discharges, bacterial problems from urban runoff, urban runoff, combined sewer overflows, atmospheric deposition; and sewage treatment discharges, historical loss of habitats; and - RAP implementation in early stages - RAP implementation in early stages. THE WATERFRON TODAY

AIR QUALITY Persistent toxic substances can be transported from even beyond this airshed because they Air quality along the north shore of the Lake is are slow to break down. Substances such as hexa- influenced by weather patterns, by sources of chlorobenzene, PCBs and mercury are deposited airborne contaminants generated within and out- in the Great Lakes by atmospheric fallout. side the Greater Toronto Bioregion, and by the Air quality is also influenced by industrial chemistry of the pollutants themselves, which and transportation activities in the Bioregion can react to form secondary pollutants such as itself. Vehicles, coal-fired generating stations, ground-level ozone. furnaces and certain industries all produce Large-scale weather patterns can lead to emissions that can impair air quality locally or periods of higher pollutant levels by enhancing across a broad region. transport into the region and concentrating the Over the past two decades levels of some air impacts, as in smog episodes or periods of high- contaminants (such as sulphur dioxide and lead) in acidity precipitation. Local patterns such as lake the Bioregion have been declining, due mainly to breezes can significantly influence the way that better regulation of industrial emissions, more fuel- pollutants spread and react with each other. efficient cars, a shift from coal and oil to natural Pollutants have limited lifetimes in the gas, and replacement of leaded with unleaded atmosphere before they react with each other or gasoline. For some contaminants, such as carbon return to the surface. For the Bioregion, a period monoxide and particulates, these changes have of five days is adopted as a representative maximum brought overall improvements, but with continued lifetime. An air quality "airshed" is defined using local problem areas. Levels of nitrogen dioxide and this travel time and typical air mass movement volatile organic compounds have remained relatively rates. This five-day airshed, which can contribute constant. Improved control of the main point pollutants to Ontario, has been estimated to extend sources of these pollutants has been offset by as far as Hudson Bay, the Dakotas, central Georgia, the growth in the number of vehicles on the roads. and New Brunswick. More than half the ground- Levels of ground-level ozone often exceed health- level ozone over Ontario originates from emissions related guidelines on warm sunny days, particularly outside this province. in suburban areas.

-47 ONTARIO GREENWA

LANDSCAPE BIODIVERSITY climatic fluctuations. Some of the valleys which provide otherwise relatively continuous habitat The Lake Ontario Greenway encompasses a corridors have very little riparian vegetation and/or relatively narrow strip of land and water, generally seriously degraded water quality near their mouths. extending inland to the first major rise in elevation East-west habitat connections near the lake are and offshore to a depth of about ten metres. This vital to assist in species dispersal and migratory landscape is heavily influenced by its proximity to movements, particularly for many species of birds the lake (in moderating climate, for example) and butterflies which migrate along the edge of and by its interconnections with the Bioregion. the lake rather than cross AS outlined in A Natural Hen'tage Strategy for the Lake open water. Ontario Greenway in the toolkit, these elements Some habitat types support a diverse flora and fauna and several are clearly in short supply critical habitat functions. within the Bioregion, The future health and biodiversity of the water- although a comprehensive front are in part dependent on the protection of supply analysis has not the hydrological and habitat values of the Niagara been completed. Wetland

Escarpment and Oak Ridges Moraine, since these habitats and interior for- 0. f-- important bioregional features are linked to the est (blocks of forest buffered waterfront by watercourses and valleys that allow from the nearest edge by at least 200 metres) are species movement and replenishment. Closer to two habitat types known to be greatly reduced from the waterfront, the wooded corridors and ground- their former extent. water source areas associated with major sections Remaining forest cover is now typically less &< of the former Lake Iroquois shoreline provide than 5% in urban areas, and ranges from 2% to similar functions at a local scale. over 20% in rural sections (see Figure 8). Except A system of 35 major valley corridors in the more heavily forested landscapes, this is (see Map 6) provides the major linkages clearly not adequate to sustain biodiversity in the for species movement to and from long term; the background report Waterfront :- the waterfront, including seasonal fish Natural Areas lists 500 plants, 57 bird species, and '-2 spawning and rearing, bird and butterfly 15 reptile and amphibian species as rare along the migration, .and dispersal of species waterfront. Many of these species are known from into new or impoverished habitats. These only one or two locations; their long-term survival landscape connections may become even more is in jeopardy in such a fragmented landscape. important in future if ecosystems have to adapt to range shifts brought about by more extreme I 'i

E LAK 0 GREE WAY S RA E(

Because of the nature and concentration of - Critical breeding destinations for fish, amphib- human activities along the waterfront over the past ians, and birds which disperse broadly into the two centuries, natural habitats exist now as relatively surrounding environment, as well as important small and isolated remnants, particularly in the staging and wintering areas for a large western and central sections of the Greenway. These remnants provide a number of associated ecological values: , ...... 'A : -' . " ' -.' I., landscapes to reduce the erosive &$>~,...~l;:;;- -. - A variety of representative and specialized effect of streams and lakes, ---:I- {Tjip landforms and natural communities, including and to capture sediments J* '<)$ 0 those associated with current and previous and nutrients from . 1' - -:. :. . .;.:$?:--, ," Great Lakes shorelines (such as dunes, adjacent landscapes -. _-/-. . -- - I--.. --.-: L-- L -' c%h'.l beaches, bluffs), and some with before they enter :c, J? -z/= e $5; -+ Carolinian or prairie affinities. the lake. /,L __ i, 'Cr' - The patterning of woodlands or marsh habitats which in some places provides large blocks or corridors that act as source areas for species and genetic replenishment of adjacent areas, or as linkages between similar habitats.

- A large diversity of species, including 1510 known species of vascular plants, 165 breeding species of birds, 47 mammals, 34 reptiles and amphibians, and 47 species of fish. Included among these are many species that are - - ---, . e-- endangered, threatened, or vulnerable. ERFRO

Based on a considerable amount of field data The biodiversity of the Greenway has been collected over the years by various agencies, 90 influenced by the invasion of non-native species, waterfront natural core areas have been identified including well-known plants such as purple (see Map 10 and Appendix A). These areas include loosestrife, and birds such as mute swans, starlings all provincially significant wetlands and ANSIs and rock doves. Approximately 33% of the (Areas of Natural and Scientific Interest) along vascular plants growing wild in the Greenway the waterfront, as well as significant warm-water are non-native in origin. and coldwater migratory fish habitats, and other significant natural areas.

Figure 8 Percent forest cover in the landscape units of the Lake Ontario Greenway

-51 0 TAR10 GREENWA STRATEGY

THE DEVELOPMENT OF HUMAN The first major transformation of the landscape COMMUNITIES occurred during the agrarian, or farming, era (from approximately 1780 onwards) when the There have been human communities along the forests were cut down and the modern pattern of water’s edge as long as the Lake Ontario waterfront fields, roads and communities was laid out. To the has existed - some dating back at least 11,000 aboriginal and French settlements was added a years, to a time shortly after the scarred and barren strong contingent of British immigrants and United landscape emerged from under the glacier’s Empire Loyalists from the American colonies, weight. The development of these communities especially in the eastern sections of the Greenway. was influenced strongly by their access to the lake - These farm communities were often more culturally first for food, transport and trade, later for water diverse than commonly thought, with expressions supply, waste disposal, and recreation. of Irish, French Canadian and German minorities, Archaeological sites along today’s waterfront and a significant black presence. Many elements provide a small window into native uses of this area, of this agrarian era are still intact, such as historic although this is only a fraction of the sites that farmsteads and mills, especially in the less urban- probably exist. As a few well-studied sites like the ized sections of the Greenway. Lynde Creek area show, native use was particularly Agrarian industry was based on wind and water heavy in the vicinity of river mouths and along power. The industrial basis for the modern economy inflowing rivers. Native peoples used the lake edge developed after the establishment of coal-fired steam for transportation and for food, and some village power and electrification. Freed from waterpower sites show continuous use over thousands of years. sites, the growing populations located in cities near The fur trade era (from about the year 1600 labour markets and transportation nodes. onwards) showed a strong relationship to the water- The industrial heritage of the north shore front, with French and British posts often located (beginning in the mid-1800s) is represented by near traditional native villages or portage routes harbours (including many smaller harbours no such as the Toronto portage (linking up the Rouge longer in industrial use), factories and factory and Humber valleys to Lake Simcoe) or Carrying complexes, and later more advanced facilities such Place between Wellers Bay and the Bay of Quinte. as oil refineries and branch-plant automotive These sites often became the foundations of later industries. The industrial era saw the beginnings settlements. This era also demonstrated a culturally of immigrations from different parts of the world, diverse “middle ground” aspect (where people of such as Italy and China, which have since strongly differing backgrounds came together), that is very influenced the region’s demographic profile. similar to current social conditions in the Bioregion. I

, p! ' _I. .h ...

.-%-- LAKE ONTARIO GREENWAY STRATEGY

EV.ALUATTOWUF The second great transformation of the land- While all landscapes along the Greenway are scape occurred as a result of industrialization primarily cultural in origin, those with human and urbanization of the cities and suburban areas. heritage qualities worthy of protection are identi- As a result, a large amount of the productive fied as cultural heritage landscapes. Over 200 farmlands within the Greenway have been removed selected cultural heritage landscapes have been from agricultural production, and converted to identified in the background report Settling the urban uses. This process is continuing today, North Shore. Often associated with these areas are although the waterfront economy appears to be historic or architecturally significant structures, now moving into a post-industrial stage. of which approximately 540 have been formally Areas where the heritage of these past eras designated by municipalities along the waterfront is strongly expressed within the existing landscape include archaeological sites, buildings and other structures with historical or architectural significance, and cultural heritage landscapes.

Humber River heritage

54 - HE ATERFRON

Cultural heritage landscapes incorporate Understanding the distinctive character of clusters of human-made features, particularly those each of these visual units, and the ways in which elements that demonstrate past human activities each is perceived as special or unique by the people and the forces that guided them. Some of the who live there, is essential to understanding the cultural heritage landscapes identified within the potential effects of proposed changes. Toronto's Greenway, for example, relate to the historic down- Eastern Beaches, for example, has a very distinctive town shopping districts of waterfront communities; residential character which is highly valued by others represent ports and harbours or industrial Beaches' residents; the first step in protecting its areas. As well, important linear features such as qualities is to comprehend the elements that make sections of Highway 2 and rail corridors have been this area unique, and how those elements relate to highlighted as cultural heritage landscapes. Cultural the waterfront as a whole. heritage landscapes can also be identified at a finer The Wateont Experiences report also maps sites scale, such as the pattern of buildings, treelines, and with significant or memorable views (see Map 11). fields making up a typical farm complex. These observation points have views that are not Cultural heritage is not only a reflection of only panoramic, but also offer a perspective that the past for waterfront communities, but also a can inform and give greater meaning to the land- continuation of traditions in the present. Most scape, such as the views in the Burlington area that waterfront communities celebrate their cultural emphasize the relationships between the Niagara traditions through the arts and through com- Escarpment and Burlington Bay. Some 83 visual munity events. At least 32 cultural venues for fairs, landmarks are also identified, which act as entrance shows, theatre productions and concerts have been features or "signatures" for communities (e.g. identified along the waterfront, along with 44 the Ford plant in Oakville), which open a window annual events, festivals, and similar activities. Many to the past (e.g. Victoria Hall in Cobourg), or more community events at a smaller scale also which act as a beacon for boaters (e.g. Peter Rock contribute greatly to the life of small towns and off Port Hope). large cities alike. The cultural imprint upon the landscape also strongly influences the ways in which visitors and residents experience the area, especially visually. As part of the Waterfront Experiences background report, 52 visual units have been described in terms of their natural and cultural heritage, scenic resources, and interpretive potential.

-55 LAK ONTARIO GREENWAY STRATEGY

Lion Monument and Humber River Birycl~4edasrrianBridge THE WA TODAY

To analyze the landscape visually, special attention is paid to the elements of: - distinctiveness: the local identity created by unique combinations of natural and cultural features; - harmony: the repetition of similar land use patterns, views, styles, and architectural details;

- integrity: opportunities to observe the past through unchanged landscape features; and - openness: visual and physical accessibility to the waterfront.

Other sensory experiences are also an important part of the waterfront setting. Most people can associate the waterfront with particular sounds (e.g. waves, foghorns), odours, temperature and humidity differences, sense of touch (such as burning sands, weather-worn docks), and strong seasonal changes.

57 ONTARIO GREENWA STRATEGY

HUMAN POPULATIONS OF TODAY people at Tyendenaga east of Belleville and on the Grand River, and the Mississauga settlements A common theme in human communities, both of Alderville, Hiawatha, Scugog and New Credit, past and present, on the north shore of Lake reflect what is probably an age-old mixture of Ontario is a long tradition of cultural diversity. diverse First Nations peoples. That diversity today is represented in a population People who live along the waterfront appear with roots in over 100 ethnic groups, and in a range to have very similar income levels and social of communities from Canada’s largest urban centre characteristics to adjacent communities north of (with the City of Toronto at over 635,000 people) the Greenway. The majority of households in the to small, closely-knit villages (such as Colborne with Greenway (69% to 75%) have children; children a 1991 population of 2001). under 17 make up roughly 20% of the population. Dragon Boat Race Festival, Toronto Island: In all the waterfront municipalities taken On average, residents allocate just under 5% of together, the 1991 population born in Canada their consumer spending to recreation. (the “non-immigrant population” in census terms) It is clear, however, that the demographic was only 60% of the total population. The degree makeup of the Bioregion is changing rapidly. A of diversity differs considerably along the Greenway, presentation to the Economic Forum on the with Scarborough having the lowest born-in- Future of the Greater Toronto Area in November Canada ratio at 53% of its population, and the 1994, entitled Demographic Forces Radically Changing 11 Northumberland municipalities reporting the Canada, the World, and Especially Toronto, outlines highest, ranging from 86% to 92%. In all but five major changes that this part of the world six waterfront municipalities, the largest group must respond to: of people listed their origins as “multiple”, meaning that their family background includes an aging population - the percentage of several countries. people over age 65 will increase from 11 % in Most of this cultural diversity reflects the 1986 to a stabilization level of around 20%; increased variety of immigrants entering Canada in tomorrow’s seniors will be more active and recent years, but some elements have a long history much better educated; in Canada. While there are currently no First Nation lands along the Greenway, today’s native population along the Lake Ontario shore is quite large, since many native people have moved to Toronto or other urban centres in search of employment. This urban population, along with the current native populations of Six Nations

58 - THE WATERFRON OF TODAY

- slowing growth - fertility rates have been rela- - new immigrants - immigrants to Canada tively low and stable for two decades; in coming favour the Toronto area, probably because decades, the rate of growth in population will of economic opportunities; about 1/3 of slow (although actual population numbers current immigrants are from Asia and 1/3 will still increase significantly); from Europe, compared to 3/4 of immigrants coming from Europe in 1960. jobs moving out of manufacturing - the security of employment in traditional An understanding of the human populations industries is declining; other sectors are of the Lake Ontario Greenway is important in growing (see next section); evaluating the kinds of recreational and economic opportunities that should be encouraged. In - new types of families - since 1961, there has particular, the changing demographic mix in Caribana, Toronto been a tremendous shift to double-income the larger urban centres suggests a need to reach families, which are now five times as prevalent out to the full spectrum of residents to ensure ps the one-income family with a working that future Greenway facilities and services will husband; and meet their needs.

" I

._ ,. ..' , ..._. . Relaxing at Centre Island, Toronto

59 0 GREENWA STRATEGY

THE ECONOMIC ENVIRONMENT In part, this loss of manufacturing capacity has been the result of movement of factories to the While the economic environment of the water- urban fringe to escape high property taxes, high front area interacts strongly with the rest of the land values, and highway traffic congestion. In part, Bioregion, at least six sectors have special it is a consequence of increasing world trade, with significance within the Greenway - industrial, trans- many manufacturing jobs moving to Asia or other p portation, residential, office and commercial, low-cost locations. It is anticipated that in the agricultural, and tourism (see next section). All future most manufacturing along the waterfront 1I of these sectors are experiencing considerable will relate to high value-added products or those change, and all are influenced by economic forces with substantial transportation costs. acting well beyond the Bioregion. The relative importance of different sectors A is also changing. The waterfront has several Industrial concentrations of industrial specialties, such as auto manufacturing and auto parts in Oshawa and A considerable body of evidence suggests that the Oakville, and plastics in the Cobourg area. These 24% 10% north shore of Lake Ontario, like everywhere industries have been relatively stable, with some 1901 1991 else, is in the midst of a fundamental change in its recent growth. The automobile and auto parts economic relationships - a shift into what has industry, for example, has been a leading export been termed “the post-industrial era”, as sector in recent years. But the largest economic Change in manufacturing economic growth is concentrated in service and growth in provincial terms in the past five years labour force high-tech businesses. has come in the information technology, Traditional goods-producing industries are pharmaceutical, biotechnology, and business an important and ongoing part of most waterfront services sectors. An increasing proportion of new municipalities, but their share of overall jobs is being created by small companies with employment is declining. In the Greater Toronto fewer than 10 people. Area as a whole, the share of the labour force The impact of these changes has differed from in manufacturing has dropped from 24% in 1981 place to place along the waterfront. Some to 18%just 10 years later. This trend is particularly industries, particularly heavy ones, have vacated pronounced in the older industrial districts in their waterfront locations; examples include oil Metro Toronto. One side-effect of this change refineries and distribution facilities in Oakville and is a growing inventory of former industrial Toronto, a starch production plant in Mississauga, lands, some heavily contaminated, available for a soya processing factory in Toronto, and other alternate land uses. industrial installations in south Etobicoke.

ARIO GREENWA RATEGY

Other waterfront industries have survived, Transportation successfully responding to change, re-investing in their plants, keeping existing products and markets Transportation corridors - road, rail, and lake - and finding new ones. These include such well- are a major feature of the Greenway landscape. known companies as Ford in Oakville, General Since manufacturing is increasingly carried out by Motors in Oshawa, Nabisco in Etobicoke, Redpath networks of firms rather than large single plants, Sugar and Lever in Toronto, and St. Marys Cement the ability to efficiently move goods will continue in Clarington. to be important. New enterprises, including many small busi- While most of the major road network within nesses, have emerged and are taking root in the Greenway is in place and unlikely to change waterfront locations such as Garrison Common except in relatively small areas, the future of other North and the Lower Don Lands in Toronto, in transportation modes is less certain. Ongoing many parts of Mississauga, and on the Whitby discussions about the future of the rail companies 4 waterfront. These include television, film and in Canada could affect the waterfront area, communications, graphics, health research, and perhaps freeing up some rail routes for expanded recycling industries. regional rail systems such as GO Transit. In addition, other economic activities such as Deregulation within the transportation industry tourism, sports, trading and entertainment are seen and federal privatization of some facilities will also to have enormous potential for growth in the produce changes in the intercity bus industry and waterfront area and the region, if properly located, airport operations. planned and managed. Industrial use of federally-operated harbour facilities in Toronto and Oshawa has been declin- Gardiner-Lakeshore transportation corridor. ing, but use of Hamilton Harbour and some private Humber Bay facilities is growing. A number of docking facilities continue to serve individual industries, such as

62 THE WATERFRONT 0 TODAY

St. Marys Cement in Clarington, Lakeview Concerted efforts are being made to change Generating Station in Mississauga, and Redpath the nature of residential development across Sugar in Toronto. The St. Lawrence Seaway saw its Ontario from the suburban sprawl that has become first growth in tonnage in some years in 1994. typical over the last generation. Among the factors However, long-term trends in the transportation prompting this change are: industry have seen substantial growth in the truck- ing sector, with other modes, notably lake shipping, - Emerging provincial policies and regional assuming a smaller share of the market. The Official Plans which support more compact Ontario Ministry of Transportation, together with nodal forms of development within existing municipalities, is undertaking a Greater Toronto urban areas rather than endless expansion. Area Transportation Plan which will provide These policies also discourage scattered rural direction over the next 30 years. residential growth, and permit municipal devel A’suburban neighbourhood opment charges to cover infrastructure costs. Residential - The economic recession, which has curbed The Lake Ontario waterfront has long been regarded demand for luxury housing, and caused buyers as an attractive place to live, but the nature of to allocate less of their income to housing over residential areas has changed considerably over the the past four years. years. The large lakeshore estates which once were common in Oakville, Burlington and Cobourg have - Changing information technology, which mostly been converted to smaller residential lots. allows many jobs to be performed from home Many former cottages have been transformed into offices. Non-farm workers in home offices now year-round homes. In larger centres, medium to approach 5% of the working population along high rise apartments and condominiums have the Greenway, with the highest ratios in become increasingly common. However, much of Toronto and in Hamilton Township. For these the new residential development near the water- workers, quality of lifestyle is an important front still follows a traditional suburban single- location factor. family pattern. - An aging population, which is expected to create substantially increased demand for apartment and row housing formats, and for retirement and “new lifestyle” communities. 0 GREENWAY STRATEC

Office and Commercial Agricultural

With close to 85% of the current office space in the Farming and related support industries continue to GTA, Metro Toronto will continue to function as be major economic contributors in the Greenway the dominant office centre along the waterfront. from Oshawa eastwards. For example, agriculture i! However, there has been a clear trend to increasing the leading industry in Northumberland County growth in major office space outside Metro. In the with annual gross farm receipts of approximately 1970s, the four regions around Toronto captured $1 15 million. Beef, mixed, and dairy farms occupy 16% of the annual growth in major office employ- the largest acreage, but many farmers also ment in the GTA as a whole. By the 1986-1991 specialize in fruit and vegetables, poultry, or Apple-growing is an important period, that share had increased to 34%. Fuelling other commodities. part of the agricultural economy of this trend in commercial development are high The Northumberland County waterfront area Northumberland County population growth levels in the regions, lower has a long history of applegrowing, which depends occupancy costs, availability of parking, and new on the specialized climatic conditions provided by technology allowing decentralization of many cold air drainage to the lake. In 1993, over 2300 office functions. acres (930 hectares) of apple orchards were active Quality of life is increasingly being considered within the County. as a significant factor in business location decisions, Because low domestic prices and international providing new opportunities for communities with competition make agriculture a difficult industry attractive waterfronts and natural settings. for many producers, continued innovation in Recognizing this trend, municipalities such as the technology, farming practices and crop selections Region of Durham and the Town of Clarington can be expected. feature natural scenes on the covers of their recent economic development brochures. Change is occurring in the retail sector as well. As supermarkets and chain retail stores grow progressively larger, downtown retail stores may have to depend more on integration with cultural, recreational, and entertainment facilities to continue to function as a destination for shopping. THE WATERFRONT OF TODAY

WATERFRONT VISITORS - over 85% cited “pleasure-recreation”; The Lake Ontario waterfront is tremendously - almost 75% indicated “health and important to many people as a place to visit. physical training”; In addition to the enjoyment of simply being at the water’s edge, waterfront visitors can enjoy many about 60% said “scenery-natural environment parks, marinas, boat launches, lookouts, campsitds, and beaches, trails, boardwalks and other cultural, tourist and recreational places and events (see Map about 25% indicated “social-family outing 7 ) . These amenities attract not only local residents, but also visitors from farther afield. If a similar survey were carried out for boaters, Promenading along Queen’s Quay, Toronto Tourists are now a major economic force in or for shoppers at Queen’s Quay Terminal, or some waterfront communities, and have the for picnickers on Toronto Island, the motivating potential to bring a significant growth in economic factors might differ somewhat. But the recognition benefits, as well as the challenges of managing of the waterfront as a special place on the edge of larger numbers of visitors. an inland sea, as a source of inexpensive recreation In 1992, there were some 35 million person- fairly close to home, and as a location for a diverse trips into waterfront municipalities for a variety of array of natural and cultural attractions, would non-work activities. The number of these non- almost certainly apply to all users. residents who actually visit the waterfront during Using the same waterfront appeal to enhance their stay is unknown, but the WatMont Trail User the Greenway as a destination area for tourists Study, carried out at four waterfront sites in 1993 requires an understanding of tourism markets and for the Trust, found that while most Trail users are trends on a broad scale. from nearby neighbourhoods, a quarter came from In general terms, the current visitor destina- more than 10 kilometres away from the waterfront. tions within the Lake Ontario Greenway can For major waterfront attractions such as Ontario be divided into three broad categories: Place, Harbourfront, or Presqu’ile Provincial Park, the ratio of visitors from beyond the local area is - central Toronto waterfront with its mass undoubtedly considerably higher. attractions; The responses provided by current waterfront users to the trail survey give some sense of the other urban waterfronts with attractions and appeal of the waterfront setting. Of the trail users green spaces mainly designed for passive use; surveyed about their reasons for using the Trail: rural waterfronts with small communities and occasional parks.

65 AKE ONTARIO GREENWAY

The length of stay of visitors varies considerably Some 875,000 people live within three A -7 L with their origins: kilometres of the waterfront. As shown on Map 8, r 80% 1 the resident population expands rapidly for variou -A Ontario Residents - Ontario residents, who make up 80% of drive times, with 4.5 million within a half-hour non-work visitors, usually return home from drive and 7.3 million within a 2-hour drive. While waterfront communities the same day, with less most waterfront visitors currently come by car, LA than 3% staying more than three nights; there is a choice of transportation modes to access many parts of the Greenway, including public Other Canadians, who are about 2% of visitors transit in larger centres and the GO Transit system have an average stay of 4.5 days in waterfront from Burlington to Oshawa. communi ties; 2% Visitors Other Canadian - Visitors from the United States account for Residents 16% of the visitor market; 70% of these stay in Ontario (not necessarily solely in waterfront Origins of waterfront visitors communities) from one to three nights; - Other foreign visitors make up 2% of visitors, and typically stay in Ontario (not necessarily solely in waterfront communities) for much longer, with half staying more than 17 nights.

66 I

Pc 1

MAP8 RESIDENT MARWLT FOR THE LAKE ONTARIO GREENWAY

120 Minutes Travel lime

90 Minutes Travel lime

60 Minutes Travel Time

30 Minutas Travsl nms AK ONTAR 0 GRE NWAY STRATEG

CHALLENGES AND OPPORTUNITIES In some places, conflicts with transportation corridors limit visual (and sometimes physical) Through the course of the Royal Commission's access to the lake. This is a major issue in Toronto's work, subsequent public hearings and meetings central waterfront, but similar concerns about the sponsored by the Waterfront Regeneration Trust, barrier effects of busy roads or rail corridors can be the deliberations of six workgroups, and the found in parts of Burlington, in the Port Union consultations to date about proposals for the Lake area of Scarborough, and in parts of Port Hope, Ontario Greenway Strategy, a number of issues Cobourg, and Trenton. Transportation links need have come forward repeatedly. While these issues to be designed to reduce barriers to the lake, and do not affect every waterfront location, they do to provide alternate means to private automobiles, recur in all sections of the waterfront. They provide such as transit and bicycling, for people to visit the central set of challenges which this Strategy the Greenway. addresses, and the central cast of opportunities An accessible shoreline involves more than where progress can be made. being able to walk to the water's edge. Degraded water quality, which limits fishing, windsailing or Access to the shore swimming, is also a barrier to access for significant groups of waterfront users. Equality of access is Most people who live in or near the Greenway want another important aspect of this challenge. The to protect or increase their access to the shore. waterfront should be increasingly accessible to For many people, the ability to walk near the user groups of diverse ages, ethnicity, personal water's edge is a priority; for others, a priority is abilities, and incomes. access at reasonable cost for boating, or the freedom to swim or windsurf without curtailment by beach postings. For many people, visual access to the water is an important factor - they are disturbed to see the lake being "walled off by too many buildings. In many parts of the waterfront, private property limits opportunities for public access, and many municipalities have responded with policies to require new waterfront developments to provide at least some access opportunities. WATERFRON TODAY

Reversing environmental degradation land uses of concern is in Toronto, they occur in communities from one end of the Greenway to the Consistently, people say that simply protecting what other. A few of these sites have been restored, and remains along the waterfront is not enough -we other projects are in the early planning stages, but need to move beyond protection into actively much more needs to be done. reversing past damage. This need is perhaps most A third pressing environmental challenge strongly expressed about water quality, and relates to the progressive loss and fragmentation of elements closely related to water quality such as the natural habitats across the Greenway. As a result, edibility of Lake Ontario fish. While considerable many species have been lost in major sections of progress has been made on a whole-lake basis, that the waterfront, and many more are at risk. While progress is often not clearly evident in the a number of small-scale restoration projects are near-shore areas that continue to have visible underway, they have only begun to address pollution problems. this problem, Among the places where environmental degradation is most evident are the former waterfront industrial sites where contaminated soils and/or groundwater are factors that sometimes delay or stalemate re-development activities. These sites illustrate well the interconnected nature of waterfront issues - certainly they are environmental problems, but while they sit idle or require expensive remediation, they quickly become economic concerns as well. In many cases, they also hinder a community's plans for waterfront renewal. While the greatest concentration of sites with historic

-69 ARIO GREENWAY STRATEC

Economic renewal Very often, that distinctive sense of place is an important part of the attraction for visitors as well. The waterfront has long been a focus for employ- In the rush to modernize and to accommodate new ment, and communities and employers must adapt businesses, communities can easily allow their to changing markets and changing expectations individual distinctive character to gradually erode. to maintain that role. While water-dependent The result can be a homogenous “geography of industries continue to be an important part of the nowhere” which is of no interest to most visitors. economy, economic challenges are presented Communities also need to understand the chang- by the migration of traditional industries away from ing expectations and desires of potential visitors, the waterfront and the increased competition to and how to foster cooperation among neighbouring downtown cores from malls and superstores. areas and agencies where competition has At the same time, these changes often create been a more frequent theme. opportunities by freeing up sites near the water for other uses, and by prompting communities to chart a course that uses a revitalized, people-friendly waterfront as a lever for economic renewaI. Encouraging private sector involvement in waterfront planning and stewardship is essential to its future. In many cases, expanding tourism is seen as an important part of a renewal strategy. However, communities must grapple with how to create the necessary mass and quality of attractions to succeed in a very competitive tourism market, without reducing their own quality of life and sense of place. AKE ON REENWA

Balancing competing objectives

A frequently-heard refrain is the need to balance competing objectives for the waterfront, so that as many demands as possible can be met. Providing unlimited public access, for example, can all too Improving decision-making easily result in sensitive natural habitats and quiet communities being over-run with visitors. Part of the reason to move to an ecosystem-based The danger, in part, is trying to meet every planning approach is the clearly recognized need need everywhere along the waterfront. The chal- to improve decision-making processes. While lenge is creating a future waterfront that maintains recent initiatives such as Planning Act reform are its health and diversity by enhancing facilities for underway, the challenge for many regulatory agen- human visitors in some areas, enhancing habitats cies and communities is to reach beyond traditional for other life in some areas, and enhancing narrow mandates and to foster joint decisions that opportunities to live or work in others. Reaching are more holistic and more timely. The degree of agreement on how this diversity is allocated, frustration with our present uncoordinated, and designing with nature so that the environmental fragmented system of responsibilities is palpable, priorities of the waterfront are respected, are both inside agencies and without. no small tasks. The Waterfront Regeneration Trust and other In addition, each community will need to weigh agencies have begun to bring people and programs its waterfront priorities against other important together in round-table settings, to provide media- community needs, whether they are aging tion where appropriate, and to foster other creative infrastructure, or health care facilities, or schools ways to improve decision-making. However, other and police. This challenge of competing priorities, reforms are needed as well, especially in the over- which is always at the heart of municipal govern- lapping layers of regulatory approvals governing ment, is made more difficult by limited financial changes along the water’s edge. resources and fiscal restraint at all levels. Over- There is a need to recognize that the art of coming this challenge will require ensuring that ecosystem-based planning is in a developing stage, waterfront projects bring a good return to the with considerable scope for innovation and community, and planning creatively to achieve improvements. The process of breaking down their implementation in an affordable fashion. artificial barriers, recognizing the connections among decisions, and considering indirect and cumulative effects must become a part of future decision-making.

72 - THE WATERFR(

Guiding development

As Map 9 illustrates, a variety of large- and small- scale changes are taking place or being considered in many locations across the waterfront. Some of these represent significant changes in land use, such as the redevelopment of former industrial lands for housing, commercial and/or recreational uses; urban expansion into farmlands; or industrial development in rural landscapes. Others Maintaining cultural values represent the revitalization of harbour areas, expansion of urban settlements, or infill in existing As waterfront communities have changed over residential communities. time, there have been widespread losses of cultural These developments present the challenge of heritage resources and landscapes, divorcing many ensuring that they occur in the most appropriate communities from their historic roots. These losses locations, respecting existing communities and may be direct, such as the destruction of archaeo- environmental conditions. Often the most attractive logical sites, historic buildings, bridges, streetscapes setting for development is close to the water’s edge, and other features. They may be the result of major but this can result in the loss of physical and/or physical changes in the landscape, for example by visual access, and can create future risks associated placing large scale buildings and widening streets with shoreline erosion or flooding. adjacent to heritage structures, or by building Some developments have already received electrical transmission towers within a scenic rural approvals or are underway. Those that are still in setting. The changes can also be more subtle. the planning stages present opportunities for inno- Often, unexpected cultural changes occur when vative approaches to location and design to address rapid development brings residents with a new set local environmental, economic and community of values into an area. needs. For example, public access to the waterfront Allowing new development to proceed without can be improved, environmental restoration can be careful consideration of existing cultural land- undertaken, and good design can create distinctive scapes may mean that community identity and and enjoyable places. distinctiveness are diminished, links to the past are severed, and places lose some of the very qualities that make them attractive places to visit or live. RAP area includes the Bay of Quinte drainage area conraining the I following watersheds: .Trent River SMoira River .Salmon-Napanee River River I

REMEDIAL N *Mimico CFeek I ANDAREASOF -Humbar River .Don Rivef -Highland Creek ,.... *Rouee River ...... :.;.:.:.:.:.:.:"'z.._...... ,...... Ides the Hamilton Harbour .'..... drainage area containing the following watersheds: I Grindetone Creek .Spencer Creek *Redhill Creek .Rambo/lndian Creek .Chedoke Creek chapHiree THEWATERFRONT OF THE FUTURE

:rfront Promenade ONTARIO GREENWAY STRATE(

o achieve the vision of the watMront of the @ foster cooperation in cost-effective public and future, concerted action by a wide range of private initiatives by reducing jurisdictional Tindividuals and agencies is necessary. Fosterhg gridlock, sharing resources, and coordinating the necessary commitment to those actions is the goal waterfront activities. of the Greenway Strategy. The scope of actions is guided by the nine pznciples established by the Royal To achieve each of these objectives, specific Commission on the Future of the Toronto Waterfont, actions are underway and planned in various parts and broadly endorsed and supported @ citizens and of the Greenway. governments - that the waterfont of today and tomorrow Within each of the actions described below, should be clean, green, accessible, connected, open, a variety of steps already taken by the Waterfront useable, diverse, affordable and attractive. Regeneration Trust, municipalities and other agencies or community groups are described as Those principles are embodied in five objectives examples of progress to date. These examples for the Greenway Strategy. Using an ecosystem are not intended to be comprehensive, but rather approach that recognizes the dynamic nature of to illustrate what is already being done in various the waterfront, the Strategy is intended to: places. Responsibility and mechanisms for steps to come are outlined more fully in Chapter Four, 8 protect the physical, natural and cultural Implementation. attributes associated with the Lake Ontario A number of documents that can be used Greenway; to help accomplish the actions are listed in Appendix D. They include a bibliography of Port Britain, Hope Township 8 identi9 restoration needs and methods and studies and background reports, as well encourage landowners, communities and as a toolkit with research results, guidelines, agencies to undertake regeneration activities; and methods compiled by the Lake Ontario Greenway Strategy workgroups in cooperation promote greater awareness, understanding with a range of partners. and recreational use of the waterfront and encourage community pride and participation in its regeneration;

promote economic activities and employmen on the waterfront that are compatible with other Greenway objectives; and

74 - R

OBJECTIVE

Protect the physical, natural and cultural attributes associated with the Lake Ontario Greenway

The first priority in regenerating the waterfont must be to protect its current values from further deterioration. While the cumulative effects of a wide range of stresses from past uses of the waterfront and its tributaries havt been significant, the wat@ront of today still embodies many physical, natural and cultural elements of value. Protecting these elements provides a base forfuture progress.

Action 1.1: Through the Remedial Action Plan programs Protect signqicant coastal features and habitats underway in Hamilton, Toronto, Port Hope, and the Bay of Quinte, a more detailed assess- Understanding the physical processes at work ment of aquatic habitat has been undertaken, along the Lake Ontario shoreline is fundamental together with an analysis of the relationship to its management. As well as influencing human between impaired water and sediment quality uses of the waterfront, these processes determine and fish and wildlife health. Within the RAP the aquatic habitats present along the shore, areas, key habitat areas for protection and/or and closely relate to the fish communities and rehabilitation have also been identified. other wildlife found there. Development of an Integrated Shoreline Examples of progress to date: Management Plan is underway for the waterfront area from Tommy Thompson Park As outlined in Chapter Two, the Shoreline to Frenchman's Bay, with the involvement Management Workgroup has developed of MTRCA, municipalities, local residents, and a descriptive model of the physical processes the Waterfront Regeneration Trust. Terms of affecting the shoreline, described the role reference developed for this process can serve of various shoreline types as fisheries habitat as a model for other shoreline units. and outlined management approaches for nine defined shoreline units.

THE WATERFRONT OF THE FUTURE

Steps to come: - Aquatic nearshore habitats such as shallow waters and wetlands should be recognized as - Integrated Shoreline Management Plans vital connecting links for movement of many (ISMPs) should be developed for shoreline fish and wildlife species including birds, units (see Map 3) to apply the coastal amphibians, reptiles and mammals. Both the processes model at a local scale, to integrate alongshore habitat connection and the ability the plans and actibns of various agencies for fish to move between deep and shallow along the waterfront, and to improve future water, including access to stream corridors, shoreline management practices to provide should be protected from disruption. ecological and recreational benefits, as well as long term cost effectiveness. In the case of - Significant coastal features, such as large very large shoreline units, ISMPs could be dynamic sand beach and dune systems and developed for several subsections, based on bluffs, and representative examples of natural differences in shoreline character or littoral shoreline types such as shale bedrock should drift. ISMPs should be completed in advance be protected as natural core areas. Any I of consideration of major shoreline changes works or land use changes along the shoreline such as new harbours, lakefills, or extensive should respect shoreline processes. shore protection. - Standardized data collection protocols should - As part of future shoreline or fishery manage- be established among various agencies with a ment planning along the Greenway, the management role along the waterfront, so that existing and potential habitat values of open future data xecemprabk, and so that priority wave-washed coast for coldwater pelagic fish data needs, especially regarding coldwater fish should be protected, especially in areas with use of the waterfront, are met (see Action 5.4). convex bedrock or cohesive cobble boulder substrates. Shoreline structures or mitigation Related implementation mechanisms in Chapter 4 projects in these areas should be designed to A.l, A.2, A.5, A.6 maintain or enhance coldwater habitat values. - Existing warmwater fish habitat along the shoreline should be protected and enhanced, with enhancement efforts aimed at areas which have the greatest potential for linkages with other warmwater habitats. WAY STRA

Action 1.2: - The dedication of locally-based interest groups Protect waterfront natural core areas has been of great benefit in the protection of many waterfront natural core areas, including As outlined in Chapter Two, natural core areas Rattray Marsh, Second Marsh, Tommy include the most valuable terrestrial ecological sites Thompson Park, the Rouge Valley, Lynde along the waterfront and are vital to the protection Creek, and Thicksons Woods. of flora and fauna populations. While the knowledge base on natural habitats along the waterfront - The Great Lakes Wetlands Conservation Action is less than perfect, most of the significant habitats Plan is a cooperative effort among government from a waterfront-wide regional perspective can and non-government interests to conserve and I be identified for protection. restore wetlands of the Great Lakes. Under this Oshawa Second Marsh and plan, a list of priority sites for securement is McLaughlin Bay Wildlife Reserve Examples of progress to date: being developed along with specific strategies to protect these sites. - Of the 90 natural core areas identified along the waterfront (see Map 10 and Appendix A), Steps to come: 47 are totally or largely in public ownership; 42 have been classified as provincially - Additional natural core areas or other significant wetlands or ANSIs; and 64 are natural areas of local value may be identified included in some form of protective designa- by waterfront municipalities or conservation tion within local Official Plans. Most regional authorities on the basis of improved informa- Official Plans also incliide some form of tion. The significance of additional areas protective recognition for natural core areas. should be evaluated using clear selection Halton Region has had an Ecological and criteria, such as those outlined in A Natural Environmental Advisory Committee to advise Heritage Strategy for the Lake Ontario Greenway Council on natural area protection since 1976 (in the toolkit). While these criteria were established at an earlier date and are orientec - Landowner contact programs to encourage specifically to a waterfront setting, they private landowners to protect significant correspond closely to the definitions habitats in parts of the Greenway have been of significance in the Comprehensive Set initiated by Halton Region, the Lower Trent of Policy Statements. Region Conservation Authority and the Hamilton Harbour RAP. .. .

,." ._.

- ' '<...... (!,.

8, I II I,

LA 0 TAR10 GREENWAY STRATEGY

- Waterfront natural core areas not currently protected should be given high priority with a range of mechanisms including planning designations, stewardship, and acquisition. Protection techniques should incorporate a buffer of adjacent lands, with a width adequate to protect natural features and processes from adjacent land uses.

- Additional landowner contact and stewardship programs are needed to encourage landowner participation in protecting and restoring a broad range of natural areas, including those in urban areas. * _.. ,_._. ... '1 .... . I+ - Provincial parks and other public lands which .. .. .7.'.,5.. a,, . ..: .. include the most outstanding natural core :d:'.t.;.' .:. , -:.<. ,.' .- .- ...,'< areas should have approved management plans in place quickly to guide future management, .' 3. Gage Creek, Port Hope . '. ' and should be encouraged to discontinue conflicting activities such as waterfowl hunting.

Related implementation mechanisms in Chapter 4: A.l,A.6, B.2, B.3, C.2

.. " I

,. I

..,, ..

'I WATERFRONT OF THE FUTUR

Action 1.3: Steps to come Protect bioregional habitat corridors and connections - The critical importance of bioregional Regeneration of the waterfront cannot take place habitat corridors connecting to the Greenway in isolation from the remainder of the Bioregion. should be fully recognized through municipal Many species of fish and wildlife spend only planning documents and any future Provincial part of their life cycle within the Greenway; greenlands initiatives. Of particular signifi- frequent local extinctions in fragmented habitats cance are the woodlands, wetlands, and source (especially within urban areas) must be countered areas associated with the former Lake Iroquois by re-colonization from habitat connections; shoreline, which provide vital regional and the re-population of new or restored habitats connections in many places where the current depends on these bioregional connections. waterfront has little habitat remaining. As well, the importance of habitat connections within Examples of progress to date: the Oak Ridges Moraine should be fully . recognized in provincial policies for that - Most of the 35 valleys identified as significant landscape feature. corridors (see Map 10 and Appendix A) are partially protected through conservation - The ecological values, particularly habitat authority ownership and flood and hazard linkage values, of the valley and forest corridors regulations, and through increasing municipal identified within and adjacent to the recognition of their natural values. Valleys Greenway should be recognized and protected are also identified for protection throiigh the in hture planning documcnts and in watershed Provincial Comprehensive Set of Policy Statements. plans. Where they occur, existing east-west habitat corridors should be protected and - The protection of significant habitat blocks and strengthened, including natural habitats corridors in headwater areas has been partially associated with: addressed through the Niagara Escarpment Plan and the Oak Ridges Moraine Strategy. Scarborough Bluffs Rouge-Duffins wildlife restoration corridor Bond Head Bluffs Gage Creek Marsh-Carr Marsh Spicer to Lakeport forest corridor Salem-Presqu'ile-Carrying Place forest/wetland corridor

-0 LAKE ONTARIO GREENWAY STRATEGY

- In the urban sections of the Greenway from Burlington to Oshawa, natural habitats have been so depleted that almost any remnant is of value to resident wildlife and as a “stepping stone” for migrant species. All these remaining natural woodlands and other habitats within the urban fabric should be protected.

Any future waterfront projects should recognize in their design the significance of the lake littoral zone as a habitat corridor for the movement of pelagic fish and for the dispersal of warmwater fish, reptiles and amphibians, and other wildlife.

Re1lated implementation mechanisms in Chapter 4: A. 1, A.4, B.3 TH WATERFRO FUTUR

Action 1.4: - Watershed and subwatershed plans which Protect water quality from further deterioration will assist in protecting future water quality in tributaries are underway in a number of As outlined in Chapter Two, considerable progress watersheds, including Sixteen Mile Creek, has been made in the past two decades in curtailing Credit, Humber, Don, Rouge, Oshawa, pollution problems along the waterfront, but aqua- Harmony/Farewell and Ganaraska. tic ecosystem health remains a significant concern. Protecting water quality from further deterioration Steps to come: is an important part of a broader effort to restore beneficial uses in the lake. - Watershed and subwatershed plans should be developed throughout the Bioregion to Examples of progress to date: ensure that development and land use activities do not further increase pollutant - Several programs of the provincial and federal loadings to tributaries and ultimately to governments, under the umbrella of the Lake Ontario waters. Even in advance of these Great Lakes Water Quality Agreement and comprehensive plans, best management the Canada-Ontario Agreement, have made practices for stormwater and for agricultural considerable progress in reducing lake-wide activities should be implemented. Priority in loadings of nutrients and toxic chemicals. developing subwatershed plans should Further steps needing immediate implementa- be given to: tion have also been identified, such as those needed to achieve the goals of :he Lake areas cf imminent !and use change in newly- Sixteen Mile Creek. Milton Ontario Toxics Management Plan. developing areas, where these plans should bc required as a pre-condition to Official Plan - The protection of headwater source' areas to amendments; maintain surface water quality and quantity in tributaries feeding into the waterfront has areas where water quality monitoring pro- been incorporated as part of both the Niagara grams have identified impairment problems Escarpment Plan and the Oak Ridges Moraine Strategy. Protection of these areas is an - Improvements to the process of developing essential foundation for regeneration of both subwatershed plans should be examined, the watercourses and the ,waterfront itself. to streamline the process and make it more Mechanisms to implement the Oak Ridges cost-efficient. Moraine Strategy are under discussion; they arc vital to the future health of the Bioregion. -a3 LAKE ONTARIO GREENWAY STRATEGY

- Continued efforts are needed to reduce sediment and pollutant loadings from agricultural areas and developing areas, through incentive programs and landowner contact long the Lake Ontario Grermway other pollutants entering the lake. This programs affiliated with the Remedial Action there is a naw twist on an gwaely Irnpmuud water qudity in the Plans or with provincial programs such as old saying: "You can lead a cyclist nearrhore area5 or Woodbine Beach and Clean Up Rural Beaches (CURB). toa watrr but you canft let him swim.'' 4 Sea

' something ta look forward to'since the haw thc capacity ta prevent CSO discharges 5ubwatershed Cig'r Oapactmenc of Pubjie Wofks and the dter all but the heaviest ralnfalk, which Environment completed construction of typically occur unm a year. Thnugh the two underground detention tanks. The idea "Warning" signs have not been permanently ,* &r--<-/ , is to catch CS05 before they reach the Toronto has two ,/ retired, the Cky of taken , ,- Take and 5mre them until the Main Spwsge important seeps toward improvimg the hcaMl Lake Ontario Treatment Plant at Ashbridge's Bay can Lake Ontarlo and ending the kuirration cd handle them. hot summer vkitun. Thrre ha5 never bcen a These dctrnHon tanks wet+ cunstrurteb shorrage d bathing suits on the Eastern in two phases. The first rank, buried under Beaches; now it's a safe her chas many of Watershed and subwatersheds park land at the bot of KetiiJwvorth Av~nue them will actually get wet. in 1990, reduced the amount of bacteria raid TH WATERFRONT OF THE FUTURE

- Integration of monitoring programs of the biota (fish, fish-eating birds, etc) of both the nearshore and open lake should be supported and encouraged as an ecologically-sound way to detect emerging contaminant problems at an early stage and to measure the effectiveness of remedial actions underway.

Related implementation mechanisms in Chapter 4: A.l,A.2,A.4,A.5, C.1, C.2,

I I

Hurnber River AKE REENWAI STRAT

Action 1.5: Examples of progress to date Protect places of archaeological, historic and cultural significance 1 - Some 577 registered archaeological sites along the Greenway have been recorded and mapped The rich and diverse cultural heritage of the Lake in the provincial data base; a total of 541 his Ontario waterfront provides a link to the past, a toric structures have been designated by munic. sense of continuity for present communities, and a ipalities under the provisions of the Ontario source of meaning for interpretive and educational Heritage Act. programs. Places of significance in today’s landscape reflect the history of human activities in the - In recent years, the retention of historic struc- past, as well as cultural activities in the present. tures for sympathetic modification or adaptive re-use has become increasingly common. Examples include the use of the Adamson Estate in Mississauga by the Royal Conservatory of Music, and the use of Victoria Hall in Cobourg and Haldimand Township Hall in Grafton for municipal purposes.

- Through the background report Settling the North Shore, 203 cultural heritage landscapes have been identified and mapped, illustrating humanac*ditic; or tra&;;ions to 1959.

- At least 32 cultural venues, where current fairs, festivals, shows, concerts and theatre productions occur, have been identified within the Greenway.

Archaeological sites along the shore provide insights into our cultural heritag

ENWAY STRAT

- Several Greenway communities have Steps to come: approached the identification and conservation of cultural resources in a systematic way; - As required by the Comprehensive Set of Policy examples include Scarborough's Archaeological Statements, all municipalities should include Facility Master Plan Study, Metro's Culture Plan, a systematic assessment of heritage resources Regional Ha'tage Features on the Metropolitan as part of the planning process preceding Toronto Waterfront, and Burlington LACAC's land 'use change. inventory and rating of historically significant structures. Most other municipalities address - Programs should be established to identify, heritage conservation in a more general way evaluate, and record archaeological sites I-,- through Official Plan policies. and built heritage resources in standardized .. n: - -1 '; I - inventory methodologies, preferably through Adarnson Estate, Mississauga - The Greenway Interpretation Master Plan, a back- proactive approaches such as heritage master ground report, identifies opportunities along plans at the municipal level. Evaluation of the Greenway for enhancing public awareness the significance of individual sites should make and understanding of cultural heritage places. use of the evaluation frameworks outlined in Chapter Two. - A Cultural Heritage Conservation Manual is being prepared by the Ministry of Culture, - In conjunction with local advisory committees Tourism and Recreation, the Ministry of and community heritage groups, municipalities Municipal Affairs, and the Waterfront should develop strategies to identify, protect, Regeneration Trust, in cc?~jur?ctior? interpret, and celebrate meanicgfu! heritam-6" the revised Planning Act, Comprehensive Set of sites and structures. Where significant sites can- Policy Statements, and implementation guide- not be preserved, mitigation measures such as lines. The Manual will provide assistance to systematic data recovery, documentation, and agencies and groups undertaking cultural monitoring should be required. Where they are heritage surveys, evaluation, analysis, planning preserved, adjacent development should not be and conservation. allowed to impair their integrity.

00 - ERFRO RE

The identification and recording of underwater heritage sites (e.g. shipwrecks) along the Lake Ontario coast should be encouraged; where such sites cannot be protected from loot ing, their location should be kept confidential.

The cultural heritage landscapes identified in Settling the North Shore should be analyzed by local communities to identify their values, and to develop planning and management guidelines based on those outlined in Settling the North Shore. New development or changes in land use within cultural heritage landscapes should conform to these guidelines to ensure that they reinforce rather than intrude upon the historic character of these areas. lated implementation mechanisms in Chapte 4 ,A.3, B.3, C.2, C.3 Re--- - LAKE ONTARIO GREENWAY STRATEG

OBJECTIVE 2

Identify restoration needs and methods and encourage landowners, communities and agencies to undertake regeneration activities.

It is clear from the work of the Royal Commission that the people of the Greater Toronto Bioregion expect more than just protection of current waterfront values - they expect restoration of the waterfont to high levels of health and productivity. This restoration is no simple task, since the effects of environmental degradation along the waterfront are diverse and complex. Some effects are widespread, such as the caution on eating some types and sizes offish caught in Lake Ontario; others are local, such as individual beach closures. The need for restoration touches on all three of the overlapping circles of community, environment and economy that characterize the ecosystem approach. While pollution or habitat fragmentation are usually thought of first as environmental problems, the posting of a beach for health reasons on a summer weekend can have a major impact on traditional community activities. In places along the waterfront where past activities have contaminated soils and groundwater, the resulting clean-up costs can render future land uses uneconomic. In addition, many communities are discovm'ng that an attractive and healthy waterfront can help attract new businesses, in contrast to the way that polluted waters and despoiled landscapes can discourage investors. In addressing restoration needs, then, it is necessay to address a broad range of activities, and to set goals or targets for each wherever possible.

11111111111111-11111~~111~11111101111111110.1-1-=

Action 2.1: waterfront, hut some directinn and greater Restore the supply of natural habitats that agency commitment are needed. Since many sustain biodiversity restoration techniques are experimental, the response of biological communities should be Throughout much of the Greenway and the monitored and techniques modified over surrounding Bioregion, many types of natural time if necessary. habitats have been reduced by agriculture Map 10 identifies areas where restoration and urbanization to mere fragments. There is projects are underway or recommended; more a wide range of opportunity and considerable details are included in the companion document, community enthusiasm for restoring more Lake Ontario Greenway Strategy: Next Steps. tree cover and other natural habitats to the ERFRO R

amples of progress to date

A range of restoration methods for common habitat types are detailed in Restoring Natural Habitats in the toolkit. This manual emphasizes the need to take advantage of natural processes whenever possible, and to match restoration activities to individual site conditions, so that each project contributes to a diverse mix of habitats across the Bioregion.

Most communities are involved to some degree in small-scale restoration projects, through parkland naturalization, tree-planting projects, wetland re-creation, or protection of naturally regenerating areas. As well as habitat renewal, many of these projects recognize the air quality benefits associated with increased tree cover.

In some parts of the Greenway, private sector industries and community groups have been active in restoration projects, such as General Motor's involvement in habitat creation in the McLaughlin Bay Wildlife Reserve, and tree-planting in the Rouge valley by the citizei group 10,000 Trees for the Rouge.

.. ARIC GREENWAY STRATEGY

Steps to come:

' ,?' . - To sustain ecological functions in the landscape, minimum amounts of forest and other natural habitats are necessary. While specific targets for forest cover should be refined through Integrated Shoreline Management Plans and subwatershed plans, in general ..;,&I . .L.-.I. terms landscape targets to maintain at least the C* b more common, edge-tolerant wildlife species should be in the range of:

50% natural vegetation within the lower sections of major valleys, including both floodplain and valley slopes (roughly double the current average);

10% forest and natural vegetation in urban I municipalities (roughly double the current Planting trees at the McLaughlin Bay average) ; and Wildlife Reserve, Oshawa no net loss offorest rper i_n_rurz! !ar?dscapes, as well as substantial gains in those which provide regional linkage functions or forest interior habitat, or those with under 5% existing natural habitat.

Lower valleys

92 THE WATERFRONT OF THE FUTURE

- Some targets have been established at a - The Metro Toronto RAP has proposed targets broad level. Under the Canada-Ontario of re-establishing 10-20 hectares of waterfront Agreement (COA) respecting the Great marsh by the year 2000, and 65-75 hectares by Lakes Basin Ecosystem, targets established for the year 2010. As well, the construction of 2 the year 2000 include the securement or kilometres of open coast reef habitat by the restoration of 6000 hectares of wetland and year 2020 is proposed. 600 kilometres of stream habitat. The Great Lakes Wetlands Conservation Action Plan - Within the context of emerging fish community (part of COA) identifies a list of priority objectives for Lake Ontario, fish habitat targets coastal and near coastal wetlands to meet this can be developed for the north shore of Lake .... _.. .. target. As part of this effort, agencies involved Ontario, particularly in relation to the role of . .:. +* ... the open coast in restoring pelagic (wide-roam- with wetland conservation and restoration . %.. .. a I. should strive to meet a target of 850 hectares ing) coldwater species. ,--- --.I.. - of additional wetland habitats protected or

restored within the Lake Ontario Greenway Related implementation mechanisms in Chapter 4: ...... ,...... over the next five years. A.l,A.4, A.5, B.l, B.2, C.3 -.- .....

anuii nonu UOOD bPB 0 ,I.."" 'Y ana -... - .. - ...... - ..

-;*...... ,. > . Existing 5 70 Existing 2% to 20% .. w--: ,. .

Target 10% Target 2% to 20%+

Urban areas Rural areas

-93 LAKE ONTARIO GREENWAY S

Action 2.2: Restoration of upland habitats has occurred Target restoration programs to priority habitat types or is planned at the Clarkson refinery site, Toronto Islands, Humber Bay Park East, High In addition to generally increasing natural habitats Park, the Ajax waterfront, and the Rouge Park within the Greenway, restoration programs should focus on some habitat types with particularly urgent Steps to come: needs. Grouping many restoration projects to

reinforce key habitat nodes or corridors has the 4 Five habitat types are in special need of greatest potential to bring positive results. restoration programs:

Examples of progress to date: 0 Large blocks of forest and marsh habitat that provide interior habitat, especially along the - A number of wetland restoration projects are Greenway from Cobourg west to Burlington. underway or planned at Coote's Paradise, Lakefront Promenade Park, Mimico Creek, Colonel Sam Smith Park, Chester Springs AIw Marsh in the lower Don valley, Oshawa Second Habitat creation at the Llarkson Ketinery site Marsh, and Nauwatin Shores, among others. - Restoration of beach and backshore/onshore dune communities is underway in Presqu'ile Prc?:;?nci.! P&, arid is a signifcant aspect of plans for Burlington Beach. - The Canadian Wildlife Service and Ministry of Natural Resources are leading a partnership to provide artificial nesting structures to help restore peregrine falcons and osprey to historic or potential breeding areas along the Greenway.

94 - THE WATERFRONT 0 THE FUTURE AKE ONTARIO GREENWAY S

@ Shoreline and estuarine wetland habitats, 0 Specialized Great Lakes shoreline habitats especially those located near river mouths or existing (dynamic beaches and dunes, bluffs) which exist wetlands, which could provide habitat connections in limited supply. for fish as well as wildlife staging benefits.

Habitat linkages within bioregional corridors, 8 Other specialized habitats that enhance overall especially river valley corridors near their mouths, biodiversity, such as habitats for threatened species where the continuity of natural habitats (both or small ponds sheltered from fish predation for aquatic and terrestria!) has &en ---h;h;-.. h-nnAcs- U'IIyIIIU'LIII "I LbUlll6. been severed. ..?*:*:""-> y+-

-. . '.> ... -_

-_.------

96 HE WATERFRON TH F T

- Aside from the Hamilton Harbour RAP Especially in urban parts of the Greenway, projects already underway, most warmwater valley corridor restoration plans could be fish rehabilitation projects should be directed developed to identify the best opportunities for to the central waterfront between Rattray ecological restoration, to re-connect both Marsh and Tommy Thompson Park, since this aquatic and terrestrial habitats and to develop area provides the greatest potential for benefit recreational trail connections to adjacent from increased habitat size and linkage. communities. Valley corridor restoration plans could form one part of a watershed strategy, - An assessment should be carried out of the or could be approached as part of a greenway potential improved benefits that could result strategy for the valley. Restoration plans from grouping mitigation measures required should determine site-specific opportunities to under the Fisheries Act into larger, strategically enhance or restore habitat, and involve both placed habitat restoration areas rather public and private lands in restoration activities than being scattered in the vicinity of small individual projects. Related implementation mechanisms in Chapter 4 A.l,A.2,A.4,A.5,A.6, B.l, C.l - There are opportunities to incorporate habitat restoration measures with trail or urban development projects near valley mouths or in other waterfront settings, such as in the Bronte Creek, Credit River, Humber River, Duffins Creek, Carruthers Creek and Cobourg Creek areas. - In some areas, it is possible to develop relatively large restoration nodes with the potential to develop interior habitat in association with river valleys, such as around the mouths of Lynde Creek, Farewell and Tooley Creeks, Wilmot Creek, and Shelter Valley Creek.

Duffins Creek LAKE ONTARIO GREENWAY STRATEGY

.. -.- W .. . . .:

Shingle beach, THE WATERFRONT OF HE FUTURE

Action 2.3: - The Ecosystem Approach to Shoreline Restore natural shoreline structure and processes Treatment workshop in the fall of 1993 provided a forum for discussion of Along the western half of the Greenway, much new approaches to shoreline treatment of the shoreline has been hardened to protect incorporating elements that restore against erosion and flooding, and to increase the natural processes. land base through lakefilling. The most common shoreline types now within the urbanized sections - The Hamilton Harbour Remedial Action of the Greenway are revetments, groynes, armour Plan's Fish and Wildlife Habitat Restoration stone seawalls and sheet piling. Replacing these Project has produced a bulletin on shoreline treatments as they reach the end of their life protection and habitat enhancement, for use expectancy offers opportunities to restore natural by shoreline landowners in Hamilton Harbour structure and processes to the shoreline. Steps to come: ..*d+-&,......

Examples of progress to date: , . ,? .: . .: , .. .. - The preparation of Integrated Shoreline Several projects are underway that demonstrate Management Plans can target priority areas the feasibility and value of environmentally- and encourage groups of landowners to friendly shore treatment, including re-creation naturalize significant stretches of shoreline of shingle beaches in Oakville, and replace- in a cost-effective manner. ment of dock wall at Harbour Square Park in the Toronto Inner Harbour with a naturalized - Shoreline management approval agencies edge and aquatic habitat features. should be encouraged to experiment with innovative treatments to naturalize shorelines - A checklist of criteria for determining at a reasonable cost, and to avoid costly appropriate shoreline treatment and delays in approval of methods that result in retrofitting has been developed (included naturalized conditions. in toolkit). Related implementation mechanisms in Chapter 4: A.2,A.5,A.6,B.l, C.l

-99 ONTARIO GREENWA STR TEGY

Action 2.4: Steps to come: Restore balance to Canada goose populations - Wildlife agencies, park managers, waterfront The race of Giant Canada geese re-introduced to landowners, interested community groups, the waterfront area in the 1960s has responded so and municipalities should continue to meet well to the close proximity of mowed grass, water, periodically to share information. and human handouts that its populations have become a serious nuisance in many waterfront - Federal and provincial wildlife agencies should parks. In particular, the abundance of goose feces take the lead in research on Canada goose impairs the recreational uses of lawns and paths, control methods to assist communities in and contributes to water quality problems in some finding workable solutions. enclosed areas. - Agencies, municipalities, and landowners Other waterfowl species contribute to this problem should continue to work together to develop in some locations, particularly mallard ducks. a coordinated strategy to control geese As well, mute swans (an introduced species) are numbers along the waterfront through habitat undesirable in natural settings, since they are management practices or population control. very territorial and prevent most other waterfowl from nesting. Related implementation mechanisms in Chapter 4 B. 1 Examples of progress to date

- The Daily Honker information brochure has been developed by waterfront municipalities and resource management agencies for distribution to the public in waterfront parks to discourage feeding of waterfowl.

... , .. - An overview of methods for dealing with nuisance waterfowl has been compiled for waterfront managers, and is available in the toolkit.

100 - ERFRON H

Action 2.5: - In 1994, both Canada (under its Federal Restore degraded waters and sediments Great Lakes 2000 Program) and Ontario re- affirmed their commitment to achieve virtual As outlined in Chapter Two, considerable progress elimination of persistent, bioaccumulative has been made in improving lakewide water quality and toxic substances by signing the Canada- in Lake Ontario, but resolution of nearshore water Ontario Agreement (COA) Respecting the and sediment quality concerns has been slower Great Lakes Basin Ecosystem. For the first than originally anticipated. For many of the people time, COA identifies specific targets along of the Bioregion, progress on restoring the lake to with specific dates. a healthy state is the most visible and meaningful measure of its regeneration. - MOEE's CURB (Clean Up Rural Beaches) program has been of assistance in addressing Examples of progress to date: restoration of degraded waters in tributaries, and in reducing pollution loads to the lake. Degraded waters, Black Creek Valley - A Lake Ontario Toxics Management Plan (LOTMP) was developed in 1989 with - Both the federal and provincial governments updates in 1991 and 1993. Its goal is a lake operate a range of monitoring programs within that provides safe drinking water and fish Lake Ontario, and have a variety of regulatory that are safe for unlimited consumption, and and voluntary programs (such as the Municipal' that allows natural reproduction within the Industrial Strategy for Abatement, the Great ecosystem of the most sensitive native species, Lakes Pollution Prevention Centre, etc.) which such as bald eagle, osprey, mink and river have a continuing positive influence on water otter. A number of priority persistent toxic quality in this lake basin and elsewhere. substances have been identified to date by the LOTMP, which will now form the basis - The Hamilton Harbour RAP (Remedial Action for a broader ecosystem-based Lakewide Plan) is being implemented through the coor- Management Plan for Lake Ontario. dinated efforts of the Bay Area Implementation Team (BAIT) and the Bay Area Restoration Council (BARC), together with many partners in the community. Over the past two years, progress has included:

-IO ONTARIO GREENWAY STRATEG'I

Remediation of combined sewer overflows - Progress on the Metro Toronto RAP has been - (CSOs) at a faster rate than initially anticipat- significantly slower; accomplishments to date ed, partly as a result of federal matching include: funds for infrastructure renewal. ; The Don Watershed Task Force, working Expansion of the primary treatment facility with MTRCA, developed and has begun at Woodward Avenue STP (Sewage Treatment implementation of a watershed Plant) is in the environmental assessment ecosystem-based strategy called Forty stage, and sewer use bylaws are in place; Steps to a New Don. public concerns about high bacterial counts in creeks may necessitate consideration of In the Emery Creek watershed, citizens the feasibility of accelerating CSO and STP developed a strategy for the management of Proposal for managing stormwater runoff: improvements. stormwater, and the industrial and business balancing system for Etobicoke's Motel Strip sector formed an association to control Promotion of a project to remove and treat pollution at its source. highly contaminated sediments in a few small areas of the harbour is being undertaken A design by the City of Etobicoke to incorpo- through the Great Lakes Cleanup Fund; some rate a wetland to treat stormwater runoff in federal funding is available, and it is critical the Motel Strip area has been prepared. that matching funding be provided as soon as possible by the Province and other partners. A Stage 2 RAP report with recommended rexediz! measures via proYidcb io the Several offshore islands are being constructed federal and provincial governments almost a to provide fish and bird habitat. year ago, but there has been no response yet

Related land use issues are being addressed RAP implementation has been moving slowly through such initiatives as an erosion control to a watershed ecosystem-based approach with manual workshop, a shoreline property remedial options directed to each of the six owners pamphlet and workshop, distribution major watersheds. of harbour maps, and cleanup activities and development of trail systems and an Some implementation activities are underway interpretive centre in Red Hill Creek. as part of normal municipal infrastructure maintenance.

102 - THE WATERFRON

The Metro Toronto RAP process has had Prevention of new problems through difficulty in bringing the watershed education, planning and proactive municipalities on board as true partners, and prevention techniques such as subwatershed in effectively garnering public support for planning, land stewardship and natural cleaning up the watersheds and the waterfront. habitat protection. Major problems not being aggressively pursued include combined sewer overflows, stormwater A Stage 2 report (recommended actions) has discharges, contaminated sediments, and been submitted to governments; no response source control of pollutants. In some cases, has yet been received but some implementa- the complex approval processes for tion actions are underway. remedial projects has hampered their timely implementation. Steps to come: * Progress on the Port Hope Harbour RAP - Canada and Ontario, together with their is predicated on finding an appropriate U.S. counterparts, are developing Lakewide site to safely store the low-level radioactive Management Plans (LaMPs) to provide contaminated sediments in the harbour. A coordination of planning and restoration Siting Task Force has been searching for a activities for each of the Great Lakes. Progress willing “host community” to accept these has been very slow in the development of sediments; public consultation within binational LaMPs, which was to begin in 1987. potential host communities is proceeding. In addition, there has been little progress in the development of a binational strategy for the - The Bay of Quinte RAP has adopted a management of toxic substances in the Great dual approach: Lakes basin, something the International Joint Commission called for over 13 years ago. For Cleanup of historic and existing problems Lake Ontario, the existing Toxics Management with capital works and abatement actions, Plan (LOTMP) will serve as a foundation for such as sewage treatment plant upgrades, the LaMP, which is to be ecosystem-based. industrial abatement, and agricultural The signing of the Canada-Ontario Agreement improvements. provides an opportunity for renewed action to realize the agreed-upon goals. KE ONTARIO GREENWAY STRATEGY

- Although a number of remedial actions are - Watershed restoration strategies and subwater- being implemented as described above, the shed plans should be strongly encouraged Remedial Action Plan process in most cases still for north shore tributaries on a priority basis, needs to achieve several levels of approval, and similar to the Forty Steps to a New Don requires the political will and financial support program already underway for the Don River. of the federal, provincial and municipal gov- In areas of major new development, subwater- ernments to achieve its goals. A re-invigoration shed plans should be regarded as a prerequisite of the RAP process as the primary vehicle to to land use approvals, so that future pollution restore the health of nearshore waters and sedi- problems can be prevented, and existing ments offers the best near-term opportunities problems remediated where necessary. In exist- to achieve progress in a very complex area. ing urban areas undergoing re-development, comprehensive water quality improvement - Continued monitoring to evaluate the extent studies may be a more appropriate approach. of nutrient, toxics, and sediment pollution elsewhere along the shore should be encouraged, Related implementation mechanisms in Chapter 4 particularly in sheltered waters adjacent A.2,A.4,A.5, C.l .. to industrial areas, such as Oshawa Harbour. Information sharing on specific control and management options for such issues as bacterial pollution and nuisance algae on beaches should also take place.

Mouth of Duffins Creek

104- .. WA HE FUT

Action 2.6: Examples of progress to date Restore sites with contaminated soils or groundwater - The MOEE has revised its policies regarding There are many sites where past industrial uses contaminated sites. Public consultation was have affected soil, surface water and groundwater completed in November 1994, and the along the waterfront, with a heavier concentration proposed Guideline for Clean-up of Contaminated in the Toronto central waterfront and the Port Sites in Ontario is expected to be available Industrial District. The nature and extent of these in spring 1995. impacts is often poorly understood until sites are investigated as part of a development proposal or The proposed guideline provides information to land transaction. Remediation efforts have been assist property owners and their consultants in hampered by regulatory uncertainty, high costs, making site restoration decisions and to ensure that and uncertain assignment of liability. Some of the the site is suitable for its intended use. Key features most challenging issues focus on financing and of the proposed approach include: legal concerns.

Bioremediation is being used by Imperial Oil to restore contaminated soils at their waterfront lands in Cobourg. The natural bacterial process that degrades hydrocarbons in the soil is enhanced by creating piles of soil and adding nutrients and oxygen. fiuamssasse ysy xpads-ai!~e 30 asn aqi yl!~pue e!iai!i3 iaiz~punoi8a~qeiod -uou 30 asn ayi q1y~a3uaiin3uo3 Ied!3yunur

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THE WATERFRONT 0 THE FUTURE

- Under the coordination of the Canadian - A Remedial Methods Handbook is also included in Council of Ministers of the Environment the toolkit, as a result of a partnership between (CCME) , draft protocols for ecological and the Trust, MOEE, and Ontario Hydro. The human health risk assessment are under Handbook provides information on the development and are expected to be available evaluation and application of a range of site in 1995. When finalized, these guidance restoration techniques. documents are expected to be adopted in the MOEE's proposed Guidelinefor Clean-up - Remediation projects are underway in several of Contaminated Sites in Ontario. locations along the waterfront, including sites in Oakville, Mississauga, the Lower Don Lands - In March 1993 the CCME approved 13 princi- Cobourg, and Trenton. Projects are at various ples to guide development of environmental stages of development, and restoration meth- liability policy and legislation across Canada. ods include bioremediation, low temperature, In addition, MOEE has initiated actions to and thermal desorption technology. provide more certainty for secured creditors in situations where contaminated property is Steps to come: involved. Further consultation is expected to examine practical ways to achieve more Continued efforts are needed to foster certainty for all stakeholders. renewal by: - A Guide to Creating a Historical Land Use monitoring the implementation of the Inventory of Potentially Contaminated Sitesfor proposed Guideline; Municipalities in Ontario (included in toolkit) has been developed by the Canadian Urban streamlining the regulatory approval process Institute in partnership with the Ministry of and requirements; Housing and the City of Toronto. The Trust has used this methodology to develop a clarifying liability for historic contamination; preliminary mapping of land uses along the waterfront where site investigations may be clarifying the role of governments, needed as part of restoration and landowners, investors and the public; redevelopment initiatives. The cities of Toronto and Etobicoke are in the process demonstrating the technical and economic of preparing detailed historical land viability of restoration methods. use inventories. LAKE ONTARIO GREENWAY STRATEG

- Municipalities along the Greenway should be 9 The continued involvement of lending encouraged to develop an historical land use institutions, legal professionals, and land inventory to assist in land use decision making developers should be encouraged in further where there has been a history of industrial use dialogue on how to restore lands in an or other activities that may have impacted economically feasible and environmentally environmental conditions. Within these areas, safe way, in the context of solutions that proposals for new development or land use are acceptable to these institutions and to change should trigger proponents to carry out the public. Phase 1 environmental site assessments. As outlined in the proposed Guideline for Clean-up Related implementation mechanisms in Chapter 4 of Contaminated Sites in Ontario, this initial A.l,A.Z, C.2, C.3 assessment will determine if it is necessary to undertake more detailed site investigations and preparation of a soil and groundwater management plan.

IO8 TH WATERFRONT OF THE FUTURE

Action 2.7: Strengthen community identity and landscape character

The rapid urbanization of much of the Greenway has led to a blandness in many communities - their distinctiveness masked by malls and strip develop ment, cookie-cutter subdivisions and replicated chain stores. Yet some sections retain much of their unique character - the historic cores of Oakville, Port Hope and Cobourg, the special feel of residential neighbourhoods in Toronto's Eastern Beaches or along the Scarborough Bluffs, the small town character of Bowmanville and Colborne; the farmlands and orchards of Clarington and Northumberland. Restoring and strengthening the "sense of place" of all waterfront communities will not only encourage more pride and involvement by those who live there, but also make them more attractive places to visit.

Examples of progress to date:

* The background report, Watufiont Experiences, divides the Greenway and adjacent area into 52 visual units and describes their visual character, including major views and landmarks, associations and meanings, interpretive potential, and implications of change. A range of strategies to protect and enhance the visual quality of waterfront landscapes is also provided. (Map 11 includes the significant views along the Greenway) AKE 0 GREENWA'L

- Many waterfront communities have been active WateontExpm'ences report can be implemented in downtown revitalization, often building on to fit local circumstances, with special attention the strengths of local architecture and historic paid to the qualities of landscape distinctiveness, themes to reinforce distinctiveness. harmony, integrity, and openness. - Communities that have recently produced - Communities along the Greenway should updated Official Plans or waterfront plans consider developing public parks that strengthen have usually included policies relating to community identity and pride through the community heritage, waterfront development inclusion of features such as boardwalks, beaches, and urban design. statues and other art, fountains, memorials, gazeboes, amphitheatres, and gardens. The - The Ministries of Housing and Municipal location of these parks and the choice of Affairs have released a draft guideline on features should be carefully considered so alternative development standards, Making that they protect, reinforce and celebrate Choices, which would allow more flexibility community character. in design and help retain more distinctiveness in a community's physical character. - A coordinated program of tree-planting would be helpful in strengthening rural land- Steps to come: scape character, particularly planting to hasten the regeneration of abandoned farmland, - Views of landmarks and panoramic or distant the replacement of traditional rows of road- vistas along the waterfront can be ~.e~qpizedir. side trees in 3ai;y agriCi!m-a: areas, and planning documents and protected during the replacement of windbreak trees around development activities, both as seen from many farmsteads. streetscapes or other vantage points, and as seen from offshore in the vicinity of recreation- - Programs should be initiated to relocate local al harbours. utility lines underground or offset from the street where they conflict with the protection - Municipalities along the Greenway should be of roadside trees or where they are visually encouraged to identify landscape character intrusive. Potential conflicts with other utilities and elements particularly valued by local and the degree of additional cost will have to residents and visitors, to assist in strengthening be considered on a site-specific basis. recognition of the character and identity of individual communities. Design guidelines Related implementation mechanisms in Chapter 4 based on the information provided in the A.l,B.l,B.3, C.l IO- THE WATERFRONT OF THE FUTURE

OBJECTIVE 3

Promote greater awareness, understanding, access and recreational use of the waterfront and encourage community pride and participation in its regeneration.

Many communities have re-discovered their waterfonts in recent years. By providing access to the water's edge, they have made a more attractive place to live, and provided opportunities for healthful recreation. At the same time, the people visiting the waterfront have become more aware of the environmental challenges in many places along the shore, and have become committed partners in its regeneration. This objective is intended to encourage and strengthen this pocess, which begins with community recognition of the value and potential of the waterfront.

111-1111111111111111------

Action 3.1: Examples of progress to date: Encourage appropriate access to and use of the waterfront - The waterfront from Burlington to Trenton While increased public access to the waterfront is currently has 126 parks and promenades, and a major theme of the Greenway Strategy, it is not 69 marinas and yacht clubs, all providing access appropriate everywhere. Decisions on access must to the water's edge for recreational activities. be related to the ability of each area to sustain various levels and types of use. Protection of Most municipalities along the Greenway environmentally sensitive areas must be given have been active in improving waterfront priority; the rights of private landowners to control access through Official Plan policies requiring trespass and of neighbourhoods to protect a dedication of waterfront lands during reasonable degree of privacy have to be respected. development, management of parks and Where it is appropriate, the kinds of access provided street ends to enhance waterfront access, should bring a range of opportunities, from quiet, development of comprehensive waterfront passive contemplation to active, exuberant play. plans with access as a major component, and In all cases, priority should be given to water- purchase of waterfront lands for parkland enhanced recreation in the immediate shoreline or other access projects. zone rather than sports fields or other activities that do not benefit to the same extent from waterfront locations. AKE 0 TAR10 GREENWAY

- Recent upgrading of GO Transit service along the lakeshore corridor, and the provisions to allow bicycles to be carried on GO trains in off- peak periods, are helpful in providing access to various parts of the Greenway. - Provincial capital funding allocations have been matched by local contributions to improve public access, including the Waterfront Trail and other projects such as a new boat launch facility in. Haldimand Township, a waterfront promenade in Burlington, and Halton Region’s development of parkland at Bronte Harbour. - Thematic guides to the waterfront are being produced by the Trust, including a Guidebook to the Watmfiont Trail with information about local attractions and services, a guide to birdwatch- ing, and a naturalist/artist’s journal. Local guides to various aspects of waterfront history or activities have also been produced in such

cerr?munifes 2s Etcbiccke and PGrt He--YL.

Encourage appropriate access TH WATERFRONT 0 THE F T R

Steps to come: - Additional or improved boat launch facilities and associated parking for day use boaters, - From Clarington east, public lands along the together with harbours of refuge along waterfront are extremely limited, with the the open coast, should be developed along notable exception of Presqu'ile Provincial Park. the Greenway where warranted by If opportunities arise to bring significant blocks boater demand. of waterfront into public ownership, especially areas providing multiple benefits (suitable for - Financial and other incentives should be public access, protecting shoreline features or developed to encourage private owners of large habitats, incorporating cultural heritage, etc.) , blocks of land along the waterfront to allow they should be pursued. appropriate public access. - In evaluating and designing new waterfront - Waterfront recreation facilities should be facilities, the role of the waterfront as a regional actively programmed where possible, to encourage use and to keep public support for recreational resource should be given priority 1. (as opposed to serving solely local needs). The their maintenance and improvement. The Ajax trends towards increasing demand for linear Rotary Club's 10 km "Run the Waterfront'' I. ' .. . access to the waterfront landscape (for walking, event to raise funds for a local hospital is a cycling, or boating), and the limits to the good example. environment's capacity to support these activities, will need to be considered in future waterfront - To meet the needs and expectations of the projects. Other regional recreation roles could increasing number of people with diverse .. . .- include boat launch and marina facilities, signifi- interests, waterfront open spaces should be I-..- cant bird-watching or natural areas, campsites, managed to enhance the quality and diversity and major beaches, among others. of potential experiences (e.g. urban and wilderness areas, landscaped parks and natural - All recreation facilities, including trails, should habitats), and to extend seasonal use through be located and designed to avoid negative plantings for shade and wind shelter, impacts on significant habitats and established sculptures, fountains, seating, storm-watch neighbourhoods, and should emphasize shelters, etc. environmentally-friendly design, materials, and construction methods. Related implementation mechanisms in Chapter 4 A.l,A.6, B.l, B.2, B.3, C.l

-113 LAKE ONTARIO GREENWAY STRATEG

Action 3.2: Examples of progress to date: Complete and upgrade the Waterfont Trail - Guidelines for trail design, signage, and main- A waterfront trail linking existing attractions was tenance, including background on liability and originally suggested by the Royal Commission as risk management, have been produced as part a way to increase waterfront access, encourage of the toolkit. public understanding of the inter-connected nature of the waterfront, and promote support for its - Agreements on the initial route for the regeneration. After considerable public discussion Waterfront Trail and on roles and responsibili- and agency negotiations, a trail route for cyclists ties for its management have been achieved in and walkers is now substantially in place from 20 of the 22 municipalities along the Greenway, Burlington to Trenton. including the involvement of six conservation authorities, several provincial ministries and agencies including Ontario Hydro, Parks Canada, and eleven private industrial landowners.

Provincial, municipal, and federal funding has been provided for 54 trail implementation projects through jobsontario Capital, jobsontario Community Action, Canada-Ontario Ii$r~sti~tctt~~WGF~S I'r~gra~i, aiid the Miiiiati-y of Transportation to establish 239 kilometres of the initial route, of which 43 kilometres is off-road in parks and other open spaces, and 196 kilometres is within road rights-of-way. - A Waterji-ont Trail Demand Analysis report and Complete the Trail a user survey program, including a pilot user survey in four locations, have been developed to assist in trail management by providing information on trail user types, expectations, and numbers. ?

Provincial funding has been announced to develop regional trail connections in the Hamilton-Wentworth and Niagara regions, which will extend the range of opportunitic for Waterfront Trail users. eps to come

Resolution of an acceptable trail alignment across Scarborough is still required, which depends in part on an evaluation of the feasibility and costs of a below-the-bluffs alternative through the Integrated Shorelint Management Plan.

Resolution of locally acceptable trail align- ments past Wilmot Creek retirement community in Clarington and across Hope Township are also required.

Additional capital funding will be needed to support completion of the critical missing links to a continuous trail, most notably:

trail links past Wilmot Creek retirement community,

trail links across Scarborough and Hope Township, and

Lakeshore Boulevard and the Motel Strip area in Etobicoke. LAKE ONTARIO GREENWAY STRATEGY

* Municipal actions and policies to upgrade the Waterfront Trail as opportunities arise should be encouraged. In some cases, this will involve support for local initiatives such as the proposals to link Port Hope and Cobourg with an off-road waterfront trail. In many other places, opportunities will be linked to new develop ments, such as those identified as areas of change in Map 9.

* Trail use will be regularly monitored by municipalities, with analysis and reporting by the Trust, to detect and respond to any problems as they emerge, and to respond to changing numbers and patterns of use and Waterfront Trail, Colonel Sam Smith Park user expectations.

- As trail use patterns emerge, communities and 4 Connections will be encouraged to other trail local businesses will find opportunities to systems, including connections towards respond to local needs for related services such Kingston in the east, the Seaway Trail along the as parking, washrooms, equipment rentals, south shore of Lake Ontario in New York State, fend and accQrr.rr.cdaticn,prG;.;dcd in a maii- and ~1 iiiiiiibei of oiiicr iriier-regivrlai tI ails, ner which ensures that local neighbourhoods both existing and proposed (see Map 1). and environmentally sensitive areas are not adversely affected. Related implementation mechanisms in Chapter 4: A.l,A.6, B.l, B.2, C.l, C.3 - The active use of the trail will be encouraged through outreach programs that will reach beyond waterfront communities, sponsoring of trail-related events, promotion of attractive destination points along the trail, and encouragement of trail-related "packages" of itineraries and activities oriented to specific user groups. THE FUT

Action 3-3: Develop public understanding of waterfront processes - Several of the background reports and toolkit and values items can provide information to assist in public understanding, including descriptive In large measure, the waterfront has been degraded models of the biological and physical processes in the past not through malicious intent, but of the north shore, and the historical demo- through ignorance of the consequences of many graphic study Who Are We?, which provides an individual decisions. Support for the governmental overview of the diversity of peoples associated and individual actions necessary for its renewal will with the waterfront. come only with a broader understanding of the values of the waterfront, and how it functions.

Examples of progress to date - A Greenway Interpretation Master Plan has been developed for the waterfront, with a central theme being the nature of change - past, present, and future - that links the natural and cultural heritage of the area to the regeneration of the Lake Ontario Waterfront. This Master Plan identifies sites with interpretive potential, a range of interpretation methods, and the messages to enhance public understanding and enjoyment that can be conveyed at each.

- A number of existing programs include themes relevant to the waterfront, such as local museums, historic brochures and walking tours, park interpretive programs, generating station information programs, and the CN Tower Ecodek exhibit. The Guidebook to the Waterji-ont Trail, the thematic guides, and trail signage will also help develop public understanding of the waterfront. LAK ONTARIO GREENWAY STRATEG

Steps to come: 4 Additional waterfront thematic guides should be developed, on such topics as landscapes, - A broad range of interpretive initiatives will be local history, and Anishnaabeg (First Nations) developed along the waterfront, from simple history. Local interpretive walks and events plaques and signs to major educational centres along the waterfront should be encouraged as such as the proposed Interpretation Centres effective, interactive ways of increasing public at Oshawa Second Marsh, the Rouge Valley, knowledge and awareness. and Red Hill Creek in Hamilton. The draft Greenway Interpretation Master Plan suggests an - Schools within the Greenway should be initial list of "meaningful places" where encouraged to incorporate into their classes interpretive facilities could be developed examples of local heritage resources and relatively quickly: waterfront physical and biological processes, as part of a bioregional theme that is included Red Hill Valley in the provincial curriculum. Burlington Beach Rattray Marsh - Online computer services such as Internet and Lakeview Thermal Generating Station World Wide Web should be explored as anothei Colonel Sam Smith Waterfront Park method of increasing public understanding Mouth of the Humber of the waterfront, by providing access to Ontario Place information, maps, and background data. Toronto's Inner Harbour/Original Tnwn ofVnrk Don Valley Brickworks Second Marsh Presqu'ile Provincial Park - Existing interpretive materials and programs, such as those at provincial parks along the waterfront, should be reviewed to ensure that they incorporate an awareness of broader waterfront issues and the Interpretation Master Plan waterfront theme of change over time. THE WATERFRONT OF THE FUTURE

Action 3.4: e Local service clubs have provided considerable Develop community participation in waterfront projects financial support for waterfront projects in their communities in such areas as Cobourg, Involvement in tangible projects brings more than Oshawa, Whitby, Ajax, Pickering and Brighton. just the direct results of a new trail or trees planted; it also brings greater awareness and commitment - Corporate landowners have been involved in for the entire regeneration process. Most local trail construction and habitat restoration support and participation in projects is expressed projects in Oshawa, Whitby, and Mississauga, through a wide array of community groups, from and have supported the development of the naturalists’ societies and service clubs to Chambers waterfront boat launch facility in Haldimand of Commerce and ratepayer associations. The involvement of these organizations can be a powerful - Metro Toronto Zoo’s Adopt-A-Pond program force in promoting and implementing Greenway links schools with existing wetlands along the objectives and projects. waterfront and elsewhere, and involves students in monitoring and studying wetlands. Examples of progress to date: Individual community groups have led the way - A citizen group with specific interests in the on many beneficial projects which contribute Greater Toronto waterfront, Citizens for a greatly to the Greenway, such as the purchase Lakeshore Greenway (CFLAG) has been active of a significant waterfront forest by the since 1991 with a mandate to “advocate the Thicksons Woods Association, the development public interest in ensuring public access and of educational materials and interpretive use of the waterfront”. This umbrella group programs by the Friends of Presqu’ile, the currently has chapters in Toronto, Etobicoke involvement of Citizens Concerned about the and Scarborough, with additional chapters Future of the Etobicoke Waterfront (CCFEW) planned in other lakeshore communities. in restoration and interpretation projects at Colonel Sam Smith Park, the active involve- - Our Waterfront, a coalition of heritage, ment of many groups in hosting waterfront environmental, resident and ratepayer groups, festivals and events, the involvement of Business has begun an ambitious project of cataloguing Improvement Associations in revitalizing historic and mapping the heritage of the Metro downtown cores in many Greenway communi- Toronto region, showing what the waterfront ties, and the sponsoring of habitat restoration and the region was like at various points in projects in the lower Don Valley and elsewhere. its history. LAKE ONTARIO GREENWAY STRATEGY

Community-based efforts are central to the - The involvement of special interest groups can planning of such waterfront renewal identify opportunities for community action in projects as Trenton's Waterfront Renaissance such areas as cycling networks, tourism devel- and Burlington's Downtown Waterfront opment, adopt-a-park programs, and habitat East project. restoration projects. One aspect with particular potential for growth is partnership arrange- - The four waterfront municipalities of Port ments between government agencies and com- Hope, Cobourg, Hope Township and Hamilton munity groups, in such areas as public educa- Township, together with the Trust, have tion and habitat restoration. Programs such as undertaken a community-based strategic Project Tree Cover, whose goal is planting 16 planning exercise to improve local quality of million trees on private land in Ontario, could life and to act on economic opportunities be applied along the waterfront. related to tourism. While still in early stages of implementation, this process has produced a - There is considerable potential for increasing cycling guide for the area, coordinated the voluntary involvement of developers and planning for new trails, an artist's co-op, and industry in community-based waterfront pro- use of heritage buildings, and joint sponsorship jects, particularly as more of them come to of a travel advertisement. This process is understand that an attractive and healthy described in the toolkit as a model for others. waterfront is good for business in the commu- (See Action 4.4) nities of which they are part. step5 t" cC\me: -- IT--.lycw miidl--- iiiisi oigaiiizatio1is diouid be encouraged within the Greenway to assist in - Both Scouts Canada and the Girl Guides of protecting and restoring significant lands. Canada are planning to use Lake Ontario The background document Creative Greenway badges to encourage the involvement Consmation provides information on the of youth members in Greenway-related projects. development and management of these community organizations. Local coordination of waterfront restoration and renewal projects, similar to the Port Hope Related implementation mechanisms in Chapter 4 Cobourg initiative, can be used elsewhere to B.3, C.2, C.3 identify needs and project sites, provide guidance on activities, and organize local involvement effectively. THE WATERFRONT OF TH FUTURE

Action 3.5: Strengthen traditional waterfront festivals and celebrations

Waterfront festivals and events promote enjoyment and appreciation of waterfront values, bring communities closer together, and provide opportunities for education.

Examples of progress to date:

- At least 44 annual events, festivals, and community activities currently occur along the Greenway, ranging from waterfowl viewing weekends at Presqu'ile Provincial Park, to cultural events at Harbourfront, to annual waterfront festivals in Oakville and Trenton. Several successful events are fairly recent in origin, with potential for added events in future. - Existing events and festivals are listed, with gen. era1 information about their theme, location and timing, in the Guidebook to the WatMront Trail and annual activity booklets. ARIO GREENWAY STRA

Information exchange among event organizers along the waterfront will be helpful in strengthening organizational and promotion skills, and in learning from other's experience.

Joint promotion or cross-promotion between events could assist in attracting a broader audi- ence and in minimizing costs, as could the development of packages of dining, accommodation and other attractions linked to special events.

In some places, development of suitable event facilities in proximity to the waterfront would add value and attractiveness to future events "Float your Fanny down the Ganny," Port Hope and festivals. Steps to come: - The Waterfront Trail launch in the spring of 1995 could become the first of an annual coor- - Additional information gathering and research dinated waterfront-wide event, as a way of cele- is needed on the nature and motivation of par- brating the inter-connected nature of the ticipnts iI1 ..r.risus e-,ynts acd fes:ivals, such as -,~-watci 11 (jilt. Fliiiiiiiiig til' a coordinated annuai the needs and interests of special groups (e.g. Greenway event and additional local events and seniors, cultural groups, the disabled), or festivals should start with an exploration of whether people are looking for more opportu- potential market demand and feasibility. nities to participate, to be entertained, or to learn. Related implementation mechanisms in Chapter 4 c.3 THE WATERFRONT OF THE FUTUR

Action 3.6: Steps to come: ACTION3.G Recognize changing populations in planning waterfront recreation - Municipalities and recreation managers along SOURCES OF the waterfront should monitor and respond to The character of the communities along the changes in recreational demand associated with ADDITIONAL Greenway has always been in a state of change, and an aging population, such as increased demand continues to change. One prominent change is in for low-impact exercise and learning experi- the demographic profile - as the population bulge ences, and less for arenas and sports fields. of “baby boomers” exerts its influence, a much higher percentage of waterfront residents fall with- * Waterfront managers should seek opportunities in older age groups. A second, equally important, to consult with and learn about recreational Montgomery, D.. and R. White. 1994. factor, is the ethnic diversity of the region’s peo- needs and desires from various ethnic groups Who An We?: Changing Patterns of Cultural ples, which has become more pronounced in within their communities, including both those Diversity on the North Shore of Loke OntarIo recent years, especially in the Metro Toronto area. who use the waterfront now and those who sel- Meeting the needs of this changing population will dom visit. be a priority in coming years. Related implementation mechanisms in Chapter 4: Examples of progress to date: B.l, C.l

* The Who Are We?study sponsored by the Trust provides a historical overview of the role of ethnic diversity within the Greater Toronto Bioregion, and a profile of the character of the existing population.

* Several existing events and facilities along the waterfront have strong ethnic ties, such as Toronto’s Festival Caravan, Caribana and Dragon Boat races, and the Plast Ukrainian children’s camp in Haldimand Township. As well, the cultural programs associated with Harbourfront incorporate a broad range of ethnic themes. LAKE ONTARIO GREENWAY STRATEGY

Action 3.7: Steps to come: Link recreational resources with health promotion - Trails and waterfront access can be incorporated Recent years have seen a much greater emphasis on into new developments in ways that encourage the concepts of wellness and disease prevention as people to use them regularly as part of their an essential part of the health care system. The daily routine. With the provision of parking and Waterfront Trail and other recreational spaces transit access wherever possible, active use by along the Greenway can contribute greatly to active people from other areas can also be encouraged. living and health promotion, because they provide excellent opportunities for safe and enjoyable exer- - Special events by health associations (e.g. cise close to home, and at low cost. As well, the arthritis, heart and stroke) to promote healthy soothing effects that many people experience in lifestyles and for fundraising can make use of quiet contemplation at the water's edge may con- attractive waterfront locations. tribute to the mental health of an increasingly crowded population. - Trail guides and other publications related to the waterfront could include a range of health Examples of progress to date: promotion ideas.

- The Port Hope Department of Parks, Related implementation mechanisms in Chapter 4 Recreation and Culture, in partnership with A.l, A.3, C.3 the Haliburton Kawartha Pine Ridge District Edth Unit, the hthClarke Actii

Action 3.8: Examples of progress to date Increase accessibility to all members of the community - Most of the paved or boardwalk off-road The waterfront should be accessible to everyone in portions of the Waterfront Trail provide the community, including those with visual, hearing increased accessibility to the waterfront for comprehension, and/or mobility restrictions. people with impaired mobility. In some places, this requires special consideration of physical conditions, such as making sure that - Some waterfront parks have been designed to boardwalks are wheelchair-accessible. Ensuring include features of particular value to people accessibility also means that waterfront users with various kinds of disabilities, such as should feel safe, and are not placed in situations Rosetta McClain Gardens in Scarborough, where they are vulnerable to criminal activity. which includes raised planter beds, adjustable Women and the elderly are especially likely to benches, a multi-sensory fountain, and avoid waterfront settings if they feel their personal scented gardens. security is at risk.

Increasing accessibility and enjoyment for people Cobourg Waterfront Promenade with disabilities is an important objective for the waterfront. While the entire Waterfront Trail is not suitable at this time for people with disabilities, major sections will be fully accessible.

Lakefront Promenade Park, Mississauga ...i I' .... .I L _. .. . 1. .. -...-" I , -. I..... I. L- . . . , . 1...... I., - .. I. - - r.. '. . I hi LAKE ONTARIO GREENWAY STRATEGY ,. ' ,- ..- .- _, I _" ' ,. .. ' .- .. I.

Steps to come 111 I .I. 1111

The Waterfront Regeneration Trust is sponsor- - I

I b :- II ing a pilot accessibility audit of a section of the Waterfront Trail, to examine its suitability for .. people with a broad range of mobility impairments and recommend improvements where necessary. Based on this pilot, municipalities will be encouraged to carry out similar accessi- .. , ., - . . - bility audits on their sections of the Trail. - In future design or upgrading of waterfront .. parks, public agencies should ensure they are ' . .:: ...... ,I accessible to people with visual, hearing, com-

.I ' I_ .. .I prehension, and/or mobility restrictions. '.I.. ,. .. .I ... I,' ..Ia -. . I.. ' - '- ? Consideration should be given to signage, sur- .-I- ' "f .:' .... ,_ .' faces, handrails, seating, lighting, textures, , :- I, .. ,. . ' .I .. .. I, -. . ,. scented plants, colour and fountains. These a, .. --, , I ' ', . .- design features can also result in more interest Len Ford Park, Etobicoke ,_ . I . . - I !.! I' .. - 8, .1. ing places for children and the general public. I. I , .I. I . . '. I. -. --- ,-...... _ -...... - __ .. b: I '. W2terfrcnt park desigr. and mana-cixent ' .I - - 5- . -- ...... _.-...... - _ _ . . b: I '. ' .I . should consider safety and security elements . -- ... AI such as lighting, emergency phones, landscap ing and policing to reduce incidents of crime and to improve the feeling of security for ...... , 'I. .. women and the elderly. Trail lighting should '-/ .:., . be carefully designed to ensure it does not -. . encourage a false sense of security and lure .. I ... trail users into unsafe areas.

Related implementation mechanisms in Chapter 4 A.l, C.2

*. , " , -_...... "1., 1 , 126 IL- HE WATERFRC

OBJECTIVE 4 Promote economic activities and employment on the waterfront that are compatible with other Greenway objectives.

..I, .. In an econontic sense, the waterfront is a valuable place, offering special advantages for industries that rely on water for transport or cooling, and an attractive setting for residential and associated commercial developments. In the past, the demands economic development often took precedence over the ecologzcal and community values associated .=---a'- of . .. with the waterfront. The challenge and the opportunity now is to encourage economic growth that is compatible with & .,. . . ., . . ,- environmental restoration, that allows waterfront access, and that enhances the quality of life for all residents in ..-. . ... ,.. . .w- waterfront communities. Economic opportunities can focus on the 1;jfestyleand image advantages of a waterfront setting, the extensive transportation infrastructure, and the substantial economic base already in place. In large measure, new development should reinforce nodes of industrial, residential, and commercial development, where economic activities can be mutually supportive, and where new jobs can be located close to home. Tourism has particular potential, based on the diverse mix of natural and cultural assets, the special appeal of an "inland sea"setting, and the established reputation of the Toronto area as a safe and attractive destination.

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Action 4.1: To protect future economic opportunities, Enhance the role of existing and new economic activities communities and employers should recognize the need to adapt to changing markets and to The waterfront and adjacent lands have long been changing expectations for waterfront locations. major centres of employment, and will continue to This may mean adopting a greater mix of uses be. Traditionally, that employment centred around than occurred previously, with new uses located harbours, shipping and storage, goods-producing alongside existing uses, or with buildings' industries, offices and retail, and agriculture in the functions changing in accordance with market eastern part of the Greenway. However, as outlined demands and appropriate development standards. in Chapter Two, the nature of that employment is Good urban design will become increasingly rapidly changing as existing employers update their important, to ensure that buildings are appropriate processes and products and adapt to changing to a waterfront setting and to their uses. markets and conditions, and new industries and enterprises emerge. :a1ep 01 ssadloid JO sa~dutex~

A33LVXL.S AVMN3383 OIBVLNO 3WV1 PiI

C TH WATERFRONT OF THE FUTUR

- Waterfront municipalities should maintain the flexibility necessary in their policies to respond to a rapidly changing economic environment; encourage existing and new businesses to recognize trends in industrial, commercial, and residential development; and address the implications of these trends in their planning documents. They should also recognize the importance of such factors as the obsolescence of the industrial building stock in some parts of the waterfront, which influences re-development decisions.

In recognition of the attractiveness of 4 The Waterfront Regeneration Trust will work waterfront communities for home-based office with the Ministry of Economic Development workers, municipalities should review their and Trade and the other ministries involved to policies to remove unnecessary restrictions to determine which of the 28 economic strategies this growing form of economic activity. being developed by the Province are applicable to the Lake Ontario Greenway. - Public utilities with a waterfront location that are necessary to sustain economic growth, such All waterfront industries should be able to as electrical generating stations and water and expect that environmental regulations will be sewage treatment plants, are expected to enforced fairly and fully, so that their competi- contribute to other waterfront objectives such tors are not permitted to gain an advantage, for as public access and habitat restoration in their example by exceeding emission standards. design and management. - In recognition of the importance of changing - Waterfront industries should be encouraged technologies in future economic and to provide interpretive and educational employment prospects, waterfront communi- opportunities about their operations to other ties and industries should be encouraged to waterfront users, to assist in explaining the create electronic links to each other, to build importance of their role in that location. on the concentration of knowledge, skilled labour, and infrastructure already present Related implementation mechanisms in Chapter 4 within the Greenway. A.l,A.2, B.l, C.2 LAK ONTARIO GREENWAY STRA EG\

Action 4.2: Examples of progress to date: Ensure appropm’ate location and design of new development - An analysis of alternative patterns of develop ment to meet a projected population increase Much of the stress affecting the waterfront and to 6 million by the year 2021 has been carried the Greenway is directly or indirectly related to the out by the Office for the Greater Toronto Area, pattern of urban development that has become leading to recommendations that a more the norm in the Bioregion over the past 30 years. compact “nodal”form of development This tradition of low-density urban sprawl devours be adopted in future. In large measure, this immense acreages of farmland and natural habitat, approach has been incorporated into the generates large quantities of stormwater flowing approved, adopted or proposed Official Plans into tributaries, overwhelms the character and of metropolitan and regional municipalities traditions of small communities, impairs regional within the GTA. However, a large number of air quality, and locks in a lifestyle dependent on planning decisions already made and many environmentally-damaging automobiles. development proposals still under consideration On the other hand, more compact communities do not reflect this approach. together with redevelopment and intensification of existing urban centres support transit and cycling, - The Comprehensive Set of Policy Statements issued reduce infrastructure costs, are less resource- by the Province in May 1994 require areas consumptive, support commercial activity to sustain proposed for development to have a compact downtown cores, and often act as a lever to restore form, a mix of uses, and densities that cl_qrr&cl_ &pg ic -.&-.,e uses. Sifice i3tefisific;:ion cff,cien;ly .GSe land, infrastrGc~Greand i.’”b;ic usually takes place within or near established service facilities. neighbourhoods, sensitive design and open review processes are essential to meet community concerns.

w:-- I w:-- u steI d evelopmet- LAKE ONTARIO GREENWAY STRATEG

Adoption of guidelines on alternative develop ment standards, after consultation on the draft guideline Making Choices released by the Ministries of Municipal Affairs and Housing, will provide more flexibility in future urban design and residential standards.

A number of projects are being planned across the Greenway which support this approach, in such areas as Burlington Downtown East, I Port Credit in Mississauga, parts of the Etobicoke Lakeshore area, Toronto Railway I, Lands, Port Union Village in Scarborough, and the Cobourg Waterfront area. I Steps to come: !. . i.- - Wherever appropriate within the Greenway, public planning and investment should Beaches boardwalk, Toronto encourage and support the intensificiation of urban core areas, the development of mixed-iuse areas with hncsing and emp!cymer,: in close proximity, the approval of appropriate land uses to finance the restoration of degraded sites, and the expansion of efficient transit systems to service waterfront communities. Careful attention to urban design and community involvement will be important to avoid negative effects on natural or cultural heritage features and to ensure that new and restored buildings and spaces complement other waterfront uses.

132 TH WATERFRONT OF THE FUTUR

- Since land available for development along the - Where new development is approved within waterfront is limited, development of new eco- rural sections of the Greenway, future planning nomic activities (including residential areas) should encourage a compact clustered form of should give priority to uses that are clearly development, and discourage linear waterfront water-dependent or water-enhanced. Wherever strip development which may require shoreline the water’s edge is in a natural state (i.e. with- protection works in future. out protection works), new buildings and other facilities should be set back sufficiently to - Development and marketing of tourism attrac- retain natural shoreline features and to provide tions along the waterfront should encourage a public access where appropriate. “linked-nodal’’pattern, with most visitors concentrated in selected destination areas that - Former industrial lands within urban areas can support high levels of use rather than should be promoted for re-use for economic dispersed throughout the Greenway. activities, using an assessment of their environmental conditions to determine the range of Related implementation mechanisms in Chapter 4: acceptable uses for individual sites. A.l,A.6, C.l, C.2 - New residential growth in waterfront communities should conform to the compact “nodal” form required by Provincial policies, and should particularly be encouraged to strengthen downtown core areas by contributing to a critical mass of economic activity to support commercial expansion. ONTARIO CREENWA

Action 4.3: Examples of progress to date: Monitor and respond to changing patterns of harbour use * A substantial part of the land base and facilities As the economic base of the Greater Toronto of the Toronto Harbour Commission (THC) Bioregion changes, the patterns of use of traditional has been transferred to the City of Toronto for harbour areas are also changing, with a greater industrial and parkland uses, and the THC's emphasis on recreational boating. Harbour areas role has been limited to managing harbour have long served as focal points for economic functions and the Toronto Island Airport. A activity, and that traditional role can be renewed major recreational marina has been developed through coordinated action. in the outer harbour in recent years. Marine transport in the Great Lakes and along

. . . 1 ,= the St. Lawrence Seaway to the ocean will continue Both the City of Oshawa and the Oshawa .-__. . 0 - U to be an important service for the region although Harbour Commission have undertaken studies -nC n conditions may change. Prevailing trends in world of the potential future uses of lands within the W C 2n shipping have tended to by-pass the ports and Port of Oshawa, and of the implications of Whitby Harbour harbours of the region in the recent past, but the competition from the St. Marys port facilities. 1994 upturn in tonnage shipped through the Despite considerable discussion, no clear Seaway, and the steady increase in the Port of resolution of land use issues in the harbour Hamilton's business, are signals that the community area has yet emerged. should remain alert to marine transportation developments, and be able to capitalize on them when - Industrial use of Hamilton Harbour has growr 1 oppnrrl-mik!s arise 2nd the ecmcrr.ics are right. ii; rccefit years iii terms GfVO:uiIie, lai-gely I linked to the steel industry. Parts of Hamilton i Harbour have been redeveloped for recreational marinas and waterfront open space.

LaSalle Park Marina, Burlington and Hamilton Harbour TH WATERFRONT OF THE FUTUR

an assessment of future needs and A 1994 Assessment of Marina Infrastructure and opportunities; the Boating Market sponsored by the Trust identified relatively limited requirements for identification of ways to maximize economic additional recreational boating facilities along and employment spinoffs from harbours; the Hamilton to Belleville shoreline over the next decade. a review of potential land base and organizational requirements for Private sector entrepreneurs continue to future operations. search for profitable ways to link waterfront communities by marine craft - for regular - The Waterfront Regeneration Trust has passenger commuters (perhaps linked to the been asked to assist the City of Oshawa in its GO system) and/or pleasure cruises. Both deliberations on the future of the Oshawa north shore and cross-lake routes continue waterfront, including the Oshawa Harbour. to be explored. - Most harbour facilities along the waterfront, Steps to come: both industrial and recreational, require routine dredging to maintain their depth. A Transport Canada and the Province of jointly-sponsored study would be beneficial to Ontario should periodically review regional review the effectiveness of various dredging harbour needs along the Lake Ontario techniques, the potential for design changes shoreline, including consideration of: to reduce future dredging requirements, and the potential of mitigating techniques trends in harbour usage and products to reduce the environmental impacts of handled within the three federal ports; routine dredging.

the broader context of changes in global and Related implementation mechanisms in Chapter 4 St. Lawrence Seaway shipping patterns; A. 3 LAKE ONTARIO GREENWAY STRATEGh

!!-. ~ -~-2, ..-=a - , Action 4.4: - These governments have also invested heavily Identifi and develop tourism/recreation destination areas in upgrading and expanding facilities on the central waterfront, including the Metro 1 One of the best opportunities to strengthen the Toronto Convention Centre (Province), economic base of the waterfront, both on the Exhibition Place (Metro, Province, Federal), central waterfront and outside major urban Ontario Place (Province with Molsons), the centres, is the tourism and recreation sector. Some CN Tower (CN Real Estate, Federal, and 7.3 million people live within a two-hour drive of private sponsors), and Harbourfront (City, the waterfront (see Map 8), and changing trends Province, Federal). in social values and recreational use suggest that the waterfront is well-positioned to attract greater - Private sector interests including theatre, visitation. Much of that isitation should be restaurant, retail and club owners, and related encouraged to focus on selected tourism/recre- investors are combining to bring physical ation destination areas that are designed to improvements and enhanced promotion to the accommodate such use with little environmental Entertainment District in downtown Toronto. or community disruption. The arts and cultural community keeps z Toronto in the forefront with high-quality I -8 Examples progress to date: productions and exhibitions that attract both n of 1- local citizens and visitors. Citizen support for -3 v - The federal and provincial governments, heritage protection has helped to ensure that -& V Metro Toronto, and the City of Toronto have some of the central waterfront’s splendid stock c ,cL--:~,.-- ~..:ia:--- :----&--&-A -,.:-.-:-,.a identified the centra! waterfrGr,t as a ma:orJ VI iici i~agcuuiiuiiigjJ 13 pi ULCLLCU, iiiaiii~diiicu, Bronte Harbour asset and attraction in the formulation of and used appropriately to maintain an

tourism strategies. attractive setting. ‘ THE WATERFRONT OF THE FUTUR

Pilot projects to assist in developing a critical mass of visitor attractions are underway in the Port Hope-Cobourg area and the Bronte Harbour area. The Port Hope-Cobourg project is described in the toolkit as an example of a community-based tourism strategy and action plan. (See Action 3.4)

A number of communities have taken advantage A of the Canada-Ontario Infrastructure Works .- , ;, . . a. .)a'__ , . .. . ,. , .. ,._,... . . ,_. P. W.F*P,. . , ~ .. '.:'?. ._. . .. Program to implement ambitious waterfront -M-.. . plans related to tourism/recreation destination areas, such as the new waterfront development in the Bronte Harbour area. _. - The TREO report in the toolkit includes an analysis of resident and tourist markets, opportunity analyses for commercial cores, market trends, trends in tourism products, and a study of several comparable waterfronts, trails and greenways to document successful techniques to develop attractive, affordable, L and functional tourism/recreation destinations in waterfront settings. c

'I \ LAKE ONTARIO GREENWAY STRATEGl

Steps to come: - In decisions regarding future investments in tourism/recreation infrastructure and marketing, the following areas will be considered primary waterfront tourism/recreation destination areas (see Map 11):

Royal Botanical Gardens and Hamilton Harbour Burlington Beach and Downtown Burlington Waterfront Bronte Harbour Port Credit Humber Bay to High Park (including the Motel Strip) Garrison Common Toronto Central Waterfront (including Toronto Harbour and Toronto Islands) Oshawa Harbour to Darlington Provincial Park = Fort I-Iupe io Cobuu1g Presqu'ile Provincial Park and Brighton Trenton and Belleville Harbourfront

138- 1 AAP 11 L TOURISM DESTINATION AREAS

a s, WATERFRONT OF THE F R

The following will be considered - In the communities surrounding primary secondary tourism/recreation destination and secondary tourism/recreation destination areas (see Map 11): areas, future planning processes should encourage discussion of: Oakville Harbour Lakefront Promenade Park the nature and extent of visitation desired, Colonel Sam Smith Park opportunities for facility development, Tommy Thompson Park to Eastern Beaches theming, and packaging of attractions, Bluffers Park and Scarborough Bluffs the role of residential and commercial Port Union Village development within destination areas, Rouge Park and Petticoat Creek infrastructure and regulatory needs to Frenchman's Bay encourage appropriate development, Ajax Waterfront Parks steps needed to attract private investment Whitby Harbour within destination areas, Port Darlington approaches to protect and/or integrate Port of Newcastle natural and cultural heritage, Village of Colborne design needs to address parking, increased traffic, and other concerns. - Within primary and secondary tourism/ recreation destination areas, a wide range of funding and leveraging techniques should be employed to implement a mix of public and private projects compatible with community needs and values. Federal and provincial agencies should view these destination areas as locations with both strategic value and local support for tourism development, in considering the future allocation of investment resources.

Related implementation mechanisms in Chapter 4 A.l, C.l, C.2

139 LAKE ONTARIO GREENWAY STRATEGl

Action 4.5: Develop new watmjiront attractions

Across much of the waterfront, tourism is currently underdeveloped. The attractive setting provided by the water's edge, in concert with the large nearby population and the good base of facilities and infrastructure already present, provide excellent opportunities to expand the economic activity associated with waterfront tourism.

Examples of progress to date: - The review of tourism market trends, undertaken by the Tourism, Recreation, and Economic Opportunities (TREO) Workgroup, identified a number of tourism development opportunities related to the Lake Ontario Greenway.

- A series of tourism industry sector strategies were completed for Ontario between 1991 and i1333,nno they idtxitify oppor iuriiiics foI growth in the following sectors:

transient overnight boating market; attractions, festivals, and events; specialty outdoors products; cultural tourism; 0 overnight and excursion cruise industry TH WATERFRONT 0 THE FUTURE ?- E

- The Competitive Tourism Development Strategy for Metropolitan Toronto, completed in 1992, identified major strategic tourism thrusts for Metro, as well as identifying product opportunities which included emphasis on the waterfront as a visitor focal point.

Toronto's central waterfront is emerging as a favoured location for major sports facilities, including the Skydome and a proposed location for the Raptors basketball facility.

Development of several new attractions is underway along the Greenway, including the Second Marsh Interpretive Centre, renovation of the Capitol Theatre in Port Hope, Ontario Place Forum expansion, the National Trade Centre in Exhibition Place, and the Metro Convention Centre in Toronto. . _. . .. _....I ,. .: - .:;.

Several other waterfront communities have , . been discussing concepts for major new visitor -m:---- .. attractions, such as Halton's proposed Great Lakes Science Centre in Burlington, Mississauga's proposed Great Lakes Ecological Centre, and Clarington's proposals for a destination resort in the Port Darlington area. ONTARIO GREENWAY STRATEGY

Steps to come - Phase 1 of the new Marine Museum on Spadina Quay in Harbourfront will reinforce the attrac- The mass appeal of the central Toronto tion of an already-active area. waterfront should be enhanced through implementation of the recommendations of - The introduction to the Greenway provided by the Competitive Tourism Development Strategy for the Waterfront Trail will provide opportunities Metropolitan Toronto, and the improvements to for development of locally-based services such the Garrison Common area identified through as food, accommodation, equipment rentals Regeneration and subsequent studies. and repair, and related businesses. - A number of additional cultural attractions on - Development of additional “active”attractions, the central waterfront are being proposed or which could include a significant commercial are in the early development stages. These component, will be encouraged within the pri- include the Roundhouse Park with an operating mary tourism/recreation destination areas rail heritage museum, a children’s museum at identified in Action 4.4. Opportunities may Ontario Place, and a new home for the exist in Greenway communities for: Provincial Archives.

.- .. excursion and sightseeing cruises camping historic animation (reenactments, interpretive programs) arts and crafts shopping festival marketplaces restaurants country inns and bed-and-breakfast accommodations

Development of increased opportunities for "passive" recreation (such as walking, bird-watching, etc) , including interpretive facilities, will be encouraged throughout thc Greenway with location, scale, and design carefully selected to minimize conflicts with natural habitats or neighbourhoods.

ted implementation me( anisms in Chapte c.1, c.3 ONTARIO CREENWAY STRATE

Action 4.6: Examples of progress to date Developjoint packaging and marketing of themed - waterfront experiences - The community-based tourism development initiative in the Port Hope-Cobourg area has To maximize the economic benefits associated included the development of added local with tourism, it is important both to draw visitors to attractions such as cycling routes, adoption I. a community and to extend their activities and of a name (Heritage Shores) to provide a sensj length of stay, preferably over at least one night. of identity, and joint advertising as the start To achieve this, local attractions may need to be of a comprehensive marketing package. (See packaged together, in order to create a critical Actions 3.4 and 4.4) The Apple Route, Hastings County mass of tourism facilities and services to attract and hold visitors. These packages could include a - The Metro Toronto Convention and Visitors variety of attractions and experiences within one Association provides a mechanism to CO- community, to allow for a range of family interests, ordinate marketing and information about or they could provide a similar activity in visitor attractions and facilities in Metro different Greenway locations, such as a package Toronto. These services are provided in other of transient boating slips to encourage stays at areas by regional tourism associations. different marinas along the shore. To be successful, the themes and experiences presented in the - The Greenway Interpretation Master Plan packages must respond to the demands of the provides recommendations on themes that market, as well as take advantage of the could be used by communities in packaging attracti=r.s i:: the area. :oca1 faciiities and resources iii aa attractive way. - The development of the'Apple Route in Northumberland County, which ties a scenic driving route with local places and events with an apple theme, provides a strong base for future associated facilities and marketing. The Waterfront Trail coincides in some sections with the Apple Route.

144- fiaoq JO 'u!e~1'snq Aq iiodsue~i punoie painimns 'saSeqxd Bulinoi pamayi . r

AK ONTAR REENWA

- As part of the Greenway Strategy launch, a - Communities with primary and/or secondary number of activities will promote the Lake destination areas should create organizational Ontario waterfront as a whole - guide books, partnerships at the local level to increase thematic guides, media coverage of the cooperation in staging and programming local Waterfront Trail opening, product releases events and festivals, create packages of related with the waterfront logo, and so on. facilities and services (food, accommodation, I s 1.' 0 li 11 .\.I. I 0 s : equipment rentals, etc), and jointly market and

10111111111111011 promote these attractions.

Related implementation mechanisms in Chapter 4 Waterfront Regeneration Trust: c.1, c.3 A Tourism, Recreation and Economic Strategy for

the Lake Ontario Greenway

LORD Cultural Resources

Planning & Management Inc. 1995.

Lake Ontario Greenway Interpretation

Matter Plan THE WATERFRONT OF THE FUTURE

Action 4.7: - The City of Trenton recently acquired a parcel Reduce conflicts between transportation corridors, of railway land separating the city from part of waterfont access and sense of place its waterfront, and hopes to acquire additional sections of rail corridor in future. In a number of places along the Greenway, access to the waterfront is restricted by expressways or - The Burlington Beach Master Plan Strategic Review railway corridors. Even where physical access is includes proposals to create building designs possible, the noise and physical barrier associated that would reduce conflicts with the elevated with these transportation corridors can detract Skyway approaches, continued discussions on greatly from visitor experiences. the removal of Hydro towers, redevelopment of a transportation works yard, and completion Examples of progress to date: of waterfront trail/bikeway connections.

- Under its Central Transportation Improvement Steps to come: Program, the Trust in conjunction with the City, Metro Toronto, the Province and other - The communities of Clarington, Port Hope, agencies, has been examining methods to Cobourg, and Hamilton Township should overcome the barrier effects of transportation explore options to overcome the barrier effects corridors in the central Toronto waterfront of rail corridors in their communities, including Rail line along the Port Hope waterfront area while maintaining the integrity of the possibility of new trail links and the transportation system. Initiatives underway new rail crossings. include developing an inviting pedestrian corridor along York Street from Union Station to the waterfront, enhancing public transit access to the waterfront area, and exploring alternative design concepts to address the barrier effect of the elevated Gardiner Expressway as appropriate to the places through which it passes. ..

, ..... ,1 ...... ': .... -,: .. -wdhw....- ...... _.. --'...... I.. ... I - Development plans for the Port Union area in - Where abandoned rail corridors become avail- Scarborough should examine options to pro- able within the Greenway, their desirability fol ---I- viur Wdlt.lfIOIlt access under or across the exist- pubiic acquisition as traii routes or for other ing rail corridor, taking public safety and Liabil- public uses should be examined. ity issues fully into account. Related implementation mechanisms in Chapter * Changes to the transportation network in the A.6, B.l, C.1 Central Waterfront area of Toronto should include consideration of improved east-west public transit links between existing attractions (such as between Harbourfront and Ontario Place) as well as overcoming the north-south barrier of expressways and railways.

!#a- THE WATERFRONT OF TH FUTUR

OBJECTIVE 5 I. Foster cooperation in cost-effective public and private initiatives by reducing jurisdictional .- gridlock, sharing resources, and coordinating waterfront activities.

,' I L. There is a widespread sense that too many waterfront initiatives are plagued by red tape, by bureaucratic wrangling and unproductive approval processes, and by a considerable degree of confusion over priorities. While a number of provincial initiatives to streamline processes and provide specific policies and guidelines are helpful in the context of land use planning and development approvals, little attention has bem gwen to the array of regulatory instruments governing shoreline projects. At the same time, the universal theme of achieving more with less has led to a greater willingness to share resources and enter into cooperative agreements to implement waterfront projects, an attitude that presents further opportunities for progress.

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Action 5.1: Examples of progress to date: Integrate the application of provincial policies, regulations, and processes - A major public review of planning practices by the Commission on Planning and Development Over 20 pieces of legislation currently apply to Reform in Ontario has led to passage of a waterfront activities, including federal, provincial, revised Planning Act (Bill 163), and to the municipal, and conservation authority regulatory release of a Comprehensive Set of Policy Statements powers. In most cases, these regulatory processes and implementation guidelines, which will are administered separately, often in isolation, provide considerably more clarity and certainty and often with less than satisfactory results. The about provincial expectations. As these policies need to provide improved integration and and the associated process reforms, are coordination of these overlapping processes has implemented at the municipal level, significant been strongly expressed by waterfront owners, improvements in integration of policies municipalities, and agencies. can be expected. LAK ONTARIO GREENWAY STRATE

Steps to come:

- Within each shoreline management unit identified in this Strategy, the process of developing Integrated Shoreline Management Plans (ISMPs) should be used to bring together agencies with relevant legislation and policy along the shoreline. ISMPs should be completed in advance of consideration of major shoreline changes such as new harbours, lakefills, or extensive shore protection. This will provide an opportunity to develop a framework for a more streamlined review of future waterfront projects. ISMPs should include the involvement of provincial ministries with responsibilities in water quality and fish and wildlife, conservation authorities with their hazard management - A memorandum of understanding has been responsibilities, local and regional municipalities established among the Ministry of Natural with land use and recreation responsibilities, Resources, the Halton Region Conservation as well as local residents and shoreline Authority, and the Credit Valley Conservation landowners. (See also Action 1.1) A11thnri97 to clarify respn.ibi!ity fer administering the permit requirements of the Lakes and Rivers Improvement Act. Recent Ontario legislation provides a mechanism to allow full delegation of this function, and negotiations are underway with other conservation authorities. - A guide for waterfront landowners and proponents to summarize the approvals needed for various types of common shoreline activities is included in the toolkit. THE WA ERFRONT OF THE PUTUR

- The Waterfront Regeneration Trust will work Lakes and Rivers Improvement Act with the Ministry of Natural Resources, the Fisheries Act Ministry of Environment and Energy, and Conservation Authorities Act conservation authorities to seek ways to reduce Public Lands Act duplication and lack of coordination in the Navigable Waters Protection Act administration of various regulatory require- Beds of Navigable Waters Act. ments along the shoreline. This should lead to Environmental Protection Act a “one-window’’approach, common application Ontario Water Resources Act forms, and round-table agency review processes wherever possible for permits and mitigating Related implementation mechanisms in Chapter 4 measures for shoreline works under the: A.l, A.2, A.6

I I I I

“0n e - w i n d ow ” a p p rova I p roc e 5 ARE ONTAR 0 GREENWAY S

Action 5.2: Examples of progress to date: Coordinate the allocation and timing of funding to waterfront projects Over the past three years, the Trust has co- - .. ordinated applicati-1 Even though there are likely to be fewer public Treasury Board for Waterfront Trail projects, dollars available in future, a substantial amount of resulting in the implementation of 54 capital federal, provincial, and municipal funding is projects in 20 municipalities across the allocated to waterfront projects of various kinds, waterfront under jobsOntarioCapita1and the including planning studies, recreational facilities Canada-Ontario Infrastructure Works program. and services, and utilities and infrastructure. By This allocation of Provincial funds to the creating partnerships to coordinate the allocation Waterfront Trail has triggered matching funding and timing of a wide range of funding sources, of more than double the Provincial investment more effective results can be achieved on priority from municipalities, the federal government, projects within the Greenway. community groups, and businesses. - Under its Provincial Bicycle Policy, the Ontario Ministry of Transportation has contributed significantly to the completion of the Waterfront Trail by providing paved shoulders on sections of Highways 2 and 33, and by partially funding F : the construction of the pedestrian-cycling bridge across the mouth of the Humber River as part of a larger bridge replacement project.

Steps to come: - Further capital funding will be required to 5 complete or upgrade a few sections of the E f Waterfront Trail, and to support a range of

& regeneration, interpretation and recreation i projects. To the extent that government funds are available, the Waterfront Regeneration Signing of a Partnership Agreement for the Oshawa Waterfront Trail Trust will continue its role of coordinating, pri orizing, and assisting in the review process for capital funding programs.

LAKE ONTARIO GREENWAY STRATEC

Future allocations of government funds to - Funding for shoreline hazard management Greenway projects should continue to require plans and waterfront access plans should be some form of local matching, with the ratio of directed towards the development of Integrated .4 . f, matching required linked to the size of the Shoreline Management Plans, and should community, its fiscal capacity, and the priority be augmented to provide for inclusion of

of the project. Contributions by businesses and ' terrestrial and aquatic habitat components. community groups, including donated services, materials, and volunteer labour, should be - Some form of financial incentive, perhaps in encouraged as part of local matching. the form of planning grants, should be made Humber River Bicycle-Pedestrian Bridge available to encourage waterfront landowners The Waterfront Regeneration Trust is explor- to work together to create grouped shoreline ing ways to broaden the base of support for the treatment projects for the renewal of protective Lake Ontario Greenway, in particular with the works on small properties. Such an approach private sector. An example of such an initiative provides opportunities to incorporate habitat is a sponsorship program that would provide enhancement or public access measures, as well benefits to the sponsors relating to the publish- as increasing the long-term cost-effectiveness ing program, recognition opportunities, associ- of shoreline protection. ation with waterfront programming and use of the waterfront logo. Related implementation mechanisms in Chapter 4 A.6, C.l, C.2,C.3 The Waterfront Regeneration Trust is investigating the establishment of an endowment fund to be dedicated to the regeneration of the waterfront. Such a fund would provide opportunities for individuals, service groups, community organizations, corporations, and governments to participate in a variety of capital projects in the Lake Ontario Greenway. TH WATERFRONT THE FUT R

Action 5.3 Assist in resolving jurisdictional or policy conflicts

In the waterfront area with its multiple agencies involved, conflicts over jurisdiction or policy are not infrequent. Since the agencies involved are often hampered by a relatively narrow mandate or lack of resources, a mechanism to bring parties together to resolve disputes is often useful.

Examples of progress to date: - The Waterfront Regeneration Trust has often been asked by the Province or by municipalities and other agencies to act as a facilitator or mediator on difficult, multi-jurisdictional issues along the waterfront. Over the past three years, this has included such areas as:

public consultation and recommendations to the Province regarding a proposed roadway within the Red Hill Creek valley in Hamilton, in the context of broader issues of regional environment and economy;

development of a management structure and funding framework for the new Rouge Park;

public discussion sessions and exploration of options regarding the protection of a provincially significant wetland contained within an area licensed for extraction by St. Marys Cement in Clarington; LAKE ONTARIO GREENWAY STRATEGY

- Eight conservation authorities with watersheds draining into Lake Ontario have formed the Lake Ontario Conservation Authority Alliance, with a common goal of promoting and implementing the ecosystem approach for the regeneration of Lake Ontario and its shoreline This Alliance will help to coordinate activities and policies along the shore, identify priorities and program opportunities, and provide a forum to act with one voice on lake wide issues and common concerns. - The Province has established the Office of the Provincial Facilitator to assist in clearing Beach and bluffs, west of Port Darlington the backlog of issues related to municipal Official Plan approvals, and to act as a mediator on land use issues where necessary. - Municipalities and provincial agencies should be encouraged to develop experience and skills Steps to come: in the round-table approach to resolving complex issues, as an alternative where possible - Working with the Lake Ontario Greenway to an adversarial hearings process. Strategy Steering Committee, the Trust will continue to play a role as mediator/facilitato Related implementation mechanisms in Chapter 4 to advance the implementation of Greenway A.4, A.6 objectives where requested by the Province or other parties involved. THE WA THE FU-T RE

Action 5.4: Standardize and link research and information networks - A system developed by the National Water Research Institute called RAISON is being used In the process of developing the Greenway to integrate environmental information for Strategy, a number of areas were discovered where analysis and visualization of data, and to the information base is inconsistent or incomplete support decision making through the expert As well, topics where further research would be system knowledge base integrated with models, helpful in managing the shoreline were identified. statistics and artificial intelligence networks.

Examples of progress to date: Steps to come: - A considerable range and amount of new - The Lake Ontario Conservation Authorities information and analysis on Greenway Alliance has proposed the development of a landscapes, resources, and communities has common data set on shoreline hazards, coastal been included in the toolkit and in processes, environmental features, and background reports. recreation and access areas as a pilot project to assist future shoreline management. A list of * As part of the Greenway Strategy development, proposed data layers is included in the toolkit. a large amount of relevant information has been digitized in Geographic Information - To increase cost-effectiveness of monitoring, System (GIS) format. joint programs which monitor several factors (e.g. coastal processes and fish habitat) at the - Metro Toronto has recently completed a State . same time should be encouraged. of the Environment Report which documents environmental cbnditions, human pressures - Information on waterfront flora and fauna and that affect the environment, and the actions natural communities will be made available to in place to address these issues. the Natural Heritage Information System operated by the Ministry of Natural Resources to assist in future monitoring and data management programs. LAKE ONTARI GREENWAY STRATEGY

- Priority should be given by the Trust and other a standardized implementation approach to agencies to information management projects collection of information, evaluation, and which will develop uniform data standards and interpretation of historic sites, structures coordinate data collection related to the and landscapes; following topics: patterns of use on the Waterfront Trail, user monitoring of economic activity related expectations, and management needs. to tourism programs and the Waterfront Trail, especially factors that improve the understanding of symbiotic economic relationships between the Greenway and adjacent communities;

an analysis of bioregional habitat supply, including improved basic information on the extent, quality, and composition of F forest cover; i

field-derived data on the nature and extent of species movement associated with habitat corridors, and on the practicality and effectiveness of habitat restoration techniques;

field collection of additional data on significant habitats, both terrestrial and aquatic, with particular emphasis on the role of the shoreline in sustaining coldwater fish populations in the eastern sections of the Greenway;

Sport fishing in Lake Ontario

I 1581- ATERFRONT 0 TH

- Future monitoring programs along the waterfront should draw upon:

working groups of agency staff, consultants and academics to advise on uniform data collection standards;

knowledge of monitoring programs already in place by other agencies (e.g. for water quality, trail counts) which could provide useful information;

the potential involvement of the volunteer community in such monitoring programs as breeding bird surveys; Canada Malting Complex

tracking of the general field of state-of-the- environment reporting to keep abreast of current developments.

New information technologies such as Internet should be used to assist in exchange of data and information on monitoring methods, and to make monitoring results available to schools, libraries, and other interested agencies.

Related implementation mechanisms in Chapter 4: A.4, A.6 AKE ON ARIO GREENWA TRATEC

Action 5.5: Examples of progress to date: Evaluate the cumulative effects of waterfont changes - The information base collected in background One of the major concerns in stewardship of a and toolkit reports for the Greenway Strategy large resource like the Lake Ontario waterfront is provides an overview of the current state of the the lack of understanding of the cumulative effects ecosystem along the waterfront. of a wide range of activities on the waterfront, in the Great Lakes system, and in the tributary - A considerable amount of regular environmental watersheds. Simply put, cumulative effects are the monitoring, particularly related to water quality combined results of all the human activities in an issues, is carried out along the waterfront by area over time, as well as the incremental effects of federal, provincial, and municipal agencies, new projects. They may be considered beneficial to providing an information base for prediction the ecosystem (such 9s the combined effects of of cumulative effects. a series of habitat restoration projects) or harmful (such as the combined effects of uncoordinated - Volunteer-based wildlife monitoring programs, shoreline treatments and their interactions with such as the forest bird and marsh bird storm sewer outfalls) . monitoring programs and the Declining Assessing the probable cumulative effects of Amphibians Task Force, provide some infor- proposed projects on the waterfront cannot be mation on the cumulative effects of habitat accomplished by considering individual projects in changes; a waterfront survey of amphibian isolation. Rather, this assessment requires an populations sponsored by the Trust in 1994 integrated approach that takes into account all the provides another benchmark. existing and proposed activities and interactions in the surrounding area. - Some indices and indicator species have been proposed to assist in the evaluation of cumulative effects, such as lake trout for the coldwater portions of the lake, raptors such as bald eagles or osprey along the shoreline, and a Great Lakes Index of Biotic Integrity as a measure of the health of littoral and warmwater habitats.

160- WATERFRONT

Steps to come: relate to the long-term vision for the Greenway so that progress towards this target can be - Continued monitoring will be necessary, using measured in comparison to current conditions: uniform data standards as proposed in Action 5.4, to ensure that emerging cumulative use ecological indicators (such as fish, amphibians) effects are detected and that appropriate and as well as social and economic indicators to timely actions can be taken to mitigate any provide a broad picture of ecosystem health; harmful effects. provide meaningful information to the public on - Subwatershed planning should be undertaken progress or problems, and encourage volunteer (see Action 1.4), particularly where land uses participation in data gathering; and other activities are in transition, to provide a framework for evaluating watershed changes. build on existing monitoring efforts to minimize cost and duplication. - Integrated Shoreline Management Plans should incorporate an assessment of probable An initial set of barometers, for which baseline data cumulative effects to assist in determining currently exists, is included in Table 1. These appropriate policies for individual projects. barometers will be refined and supplemented by additional measures through discussion with - A Greenway Report Card should be prepared agencies and municipalities. at a minimum once every three years, using a broad set of barometers of progress. Related impldmentation mechanisms in Chapter 4 The barometers selected for periodic assess- A.4, A.6 ment should: I

ONTARIO CREENWAY STRATEG

TABLE INITIAL SET OF BAROMETERS OF PROGRESS

Water Quality Levels of persistent toxic substances in Lake Ontario Beach postings Phosphorus trends

Habitat Status Status of natural core areas (designated in OPs, in public ownership, classified as significant, etc.) Habitat restoration projects

Wildlife Populations Contaminant levels in biota (eg. herring gull eggs, Caspian terns, snapping turtles) Reproductive success in double crested cormorants Change in population levels and/or distribution of selected Vulnerable, Threatened, or Endangered (WE) species Change in community structure and/or distribution of amphibian populations Size of resident Giant Canada Goose population

~~~~ ~ Planning and Implementation status of Remedial Action Plans Data Collection Number of Integrated Shoreline Management Plans Number of comprehensive watershed and subwatershed plans Number of Archaeological and/or Cultural Master Plans Number of Historic Land Use Inventories Number of standardized data management projects

Waterfront Trail Kilometres of Waterfront Trail completed Percent of Waterfront Trail off-road

Tourism Initiatives New waterfront attractions Number of cooperative marketing initiatives in Greenway communities

Cultural Heritage Number of registered archaeological sites and designated historic buildings

~~ Greenway Participation Number of waterfront visitors at selected locations and events Number and type of new interpretive facilities Number of Guide and Scout badges earned

I c2- Chapmur IMPLEMENTATION

bSalle Park Marim Burlington, and Hamilton Harbour LAKE TAR REENWAY S

mplementation mechanisms to carry out Greenway Waterfront. In addition, a number of municipalities objectives can be grouped into three related categories (Metro Toronto, Durham Region, Burlington, I A: Planning/Replatory Mississauga, Etobicoke, Ajax, Oshawa, Clarington, B: Stewardship Port Hope, Cobourg) have completed or are in the C: Funding and Incentives process of undertaking specific waterfront studies. Within each of these categories, most mechanisms Where necessary, specific policies related to already exist, some are emerpng, and a few others have Greenway Strategy actions can be added as Official been identifed as being needed. Plans are updated or by amendment.

Environmental assessment: A. PLANNINGIREGULATORY Both federal and provincial environmental A. I: Municipal planning and assessment legislation provide approval and appeal environmental assessment processes for major projects, with consideration of environmental effects (broadly defined to Municipal planning: include ecological, economic, cultural and social factors) and alternatives. In a regulatory sense, the Planning Act is the single The provincial Environmental Assessment most important piece of legislation. This Act estab Act, administered by the Ontario Ministry of lishes procedures for articulating and implementing Environment and Energy (MOEE) , applies to provincial policies, for establishing Official Plans at public sector projects such as infrastructure, the regional and local municipal level, and for local electrical generating and transmission facilities, regulatory mechanisms such as zoning, Secondary etc. Approval processes under this Act can be Plans, site plan approval powers, etc. combined with Planning Act approvals through All five upper tier municipalities, and 13 of consolidated hearings. Smaller-scale projects are the 22 local municipalities along the waterfront, often included within Class Environmental have prepared or amended their Official Plans Assessments. Class EAs of particular interest along since Regeneration was published in June 1992. This the waterfront include the Class EA for Municipal has given them an opportunity to incorporate Water and Wastewater Projects, and the Class EA the ecosystem approach and policies reflecting the for Remedial Flood and Erosion Control Projects nine waterfront principles put forward by the Royal of the Conservation Authorities. Commission on the Future of the Toronto The environmental assessment process is 3ecially useful in considering projects with mplex or off-site effects. Along the waterfront, 2se may include projects with water quality plications (e.g. sewage treatment plant pansions), projects with potential to alter shore- e processes or aquatic linkages (e.g. lakefills, Eakwaters) , and projects which could lead to nificant loss or fragmentation of natural habitats g. marinas, new roads, utility corridors). The Canadian Environmental Assessment t, which was recently proclaimed as federal ;islation under the Department of Environment, plies environmental assessment procedures projects with federal funding such as harbour velopment, projects on federal lands or ,posed by federal agencies, or projects where leral legislation applies. AK ONTARI GREENWA

A.2: Legislation affecting use of Public Lands Act: r"-- water's edge and offshore This legislation, which is administered by MNR, Navigable Waters Protection Act: applies where waterlots or shoreline are in Provincial ownership. It requires permits for This federal legislation, administered by the placing of buildings or structures on public lands Department of Transport, requires permits for (including beds of navigable waters). The Act any works within navigable waters, including also requires permits for dredging or filling of Lake Ontario and major tributaries. shore lands (public or private), including lands seasonally inundated, and assigns ownership of 1 Fisheries Act: lands with shipwrecks.

7 This federal legislation, with administration Conservation Authorities Act: :n . :,: .. . ., , . . e .,_.A. -- . ;.:: - shared between the Department of Fisheries and - __,, --. :.: _-~, .. - -. I Oceans and the Ontario Ministry of Natural Under this Act, which is administered by MNR,

Port of Toronto Resources (MNR)) regulates fish habitat protection conservation authorities (CAS) can enact and pollution prevention. Major elements of the regulations controlling the alteration of waterways habitat protection provisions have been incorporated and the placement of fill or construction in areas into the provincial Comprehensive Set of Policy State- subject to flooding or erosion. These regulations ments. The Act requires no net loss of fish habitat; can include Great Lakes shoreline as well as mitigation measures and/or compensation to tributary streams; regulations are in place on only replace habitat may be frequently considered. parts of the Greenway shoreline. CAS have primary responsibility for administering the Great Lakes - Beds of Navigable Waters Act: St. Lawrence River Shoreline Policy.

Administered by MNR, this Act defines and protects navigable waters for public use; and establishes a process to regulate use of beds of navigable waters for such works as dams, wharfs docks, tunnels, pipes, or placing of fill.

166 - MPLEME

Lakes and Rivers Improvement Act: Environmental Protection Act:

.. . ._ Permits are required for direct alteration of a This legislation, administered by MOEE, provides watercourse under this legislation, which is the authority for MOEE to require that a administered by MNR, to ensure the suitability of property owner take action to prevent an adverse the location and nature of “improvements”,which effect from the presence or discharge of a include protection works along the shoreline and contaminant. It also allows MOEE to order that a projects in the water. The Act has broad objectives contaminated property be restored in a manner related to “the use, management and perpetuation consistent with existing guidelines, standards and of the fish, wildlife and other natural resources procedures. This legislation requires Certificates of dependent on these waters, and the preservation of Approval for sources of air emissions and other i natural amenities”, and could probably be applied discharges to the environment that could cause an more broadly than it has been. adverse effect and describes liability for spills. It : also requires approvals for construction of lakefill + Municipal Act: projects, as described in the Guide to Shoreline C Approvals fw Landowners. Trumpeter swan This Act, administered by the Ministry of Municipal Affairs (MMA), establishes the frame- Ontario Water Resources Act: work for municipal operations. It provides the ability for a municipality to pass a by-law This,Act, administered by MOEE, regulates water requiring approval for construction over any public supply and quality and requires notification shore, bay, harbour, river or water; establishes and/or permits for open water disposal of dredged building permit requirements for retaining materials, hydraulic dredging, major marine walls; and allows the passage of by-laws to regulate construction, and marine activities in designated tree-cutting or site clean-up agreements. water supply areas (i.e. near water intake pipes). LAKE ONTARIO GREENWAY STRATEGY

1 A.3: Other regulatory instruments Health Protection and Promotion Act: Harbour Commissions Act: This is provincial legislation, administered by the Ministry of Health, which empowers a Medical This federal legislation regulates the activities of Officers of Health to use regulations in cases the Oshawa Harbour Commission. of health hazards, such as requiring the posting of beaches during periods of high bacterial levels. Toronto Harbour Commissioners Act: Aggregate Resources Act: This federal legislation established and regulates the Toronto Harbour Commission. This Act, administered by MNR, regulates the approval and management of pit and quarry Hamilton Harbour Commission Act: operations such as those on the waterfront owned by St. Marys Cement and St. Lawrence Cement. This federal legislation established and regulates The Act has discretionary powers to require the Hamilton Harbour Commission. environmental impact studies and mitigation prior to issuing of licences. Fishing and Recreational Harbours Act:

This federal legislation, administered by the Department of Fisheries and Oceans, regulates the use, management, and maintenance of “scheduled harbours”, which include part or all of the harbours at the following locations:

Bronte Harbour Port of Newcastle Oakville Harbou Port Hope Port Credit Cobourg Bluffers Park Presqu’ile Point Whitby Harbour Brighton Port Darlington Trenton MPLEMEN

Endangered Species Act: Provincial Parks Act:

This Act, administered by MNR, requires protection This legislation, administered by MNR, of endangered species and their habitat; it regulates management of provincial parks within currently applies to only one known species and the Greenway at Darlington and Presqu’ile. location along the waterfront (hoary mountain mint in Burlington). Trees Act:

Ontario Heritage Act: This provincial legislation, administered by MNR, allows Regions and Counties to adopt This legislation, administered by the Ministry tree-cutting by-laws. of Culture, Tourism and Recreation (MCTR), enables municipalities to establish Local ,- Architectural Conservation Advisory Committees, L: to designate properties of historic or architectural Presqu’ile Provincial Park interest, to enter agreements to protect designated properties, and to create heritage districts and establish guidelines to protect their character. The Minister of Culture, Tourism and Recreation can designate archaeological sites for protection and can establish other policies and programs for the conservation of heritage. Significant revisions to strengthen this Act have been proposed, so that municipalities can more effectively protect their cultural heritage.

-169 STRATE(

A.4: Watershed strategies and Both of these mechanisms have the potential subwatershed plans to maintain water flow regimes and significantly improve water quality and habitat connections Over the past several years, watershed strategies in waterfront tributaries, and they should be of varying kinds have been prepared for several regarded as important planning tools in all water- tributary rivers including the Credit, Don, sheds feeding into the Greenway. Improvements and Lynde Creek, and more strategies are under to streamline the process of developing and development. In most cases, strategy development implementing these strategies and plans would is led by the local conservation authority, in help to encourage their use. partnership with municipalities and local interest groups. The impetus to prepare watershed A.5: Remedial Action Plans strategies is often related to development applications or other proposed activities with the As outlined in Chapter Two, Remedial Action potential to affect the health of the watershed. Plans are the primary planning tool for Watershed strategies are intended to outline defining measures necessary to reverse water and how characteristics of the watershed (including habitat quality problems in the four Areas of water, land, and habitat) can be protected and Concern along the waterfront. The development enhanced as land uses change. They also set the of Remedial Action Plans involves a substantial stage for the preparation of subwatershed plans, amount of data collection and analysis leading to which include further details on water resource a problem definition, and opportunities for public management strategies. Subwatershed plans involvement in assessing solutions. The implemen- address issues such as stormwater management, tation of Remedial Action Plans will remain the and have most frequently been used in association primary vehicle for environmental rehabilitation with rapidly developing areas. Much of the in these areas. (See also Action 1.1). implementation of practices developed through these plans is through the municipal planning approval process. EME AT

A.6: Integrated Shoreline Management Plan B. STEWARDSHIP

Because of the physical and land use differences B.1: Management of public lands along the Lake Ontario waterfront, it is impossible to prescribe one set of shoreline management Existing public lands include municipal, con- recommendations that will apply everywhere. A servation authority, and provincial parks, more practical approach is the development of a and waterfront lands held by utilities such as set of Integrated Shoreline Management Plans Ontario Hydro, the Ontario Clean Water Agency, (ISMPs), based on the concepts outlined in this and municipal utilities. While these lands Greenway Strategy. (See also Action 1.1.) contribute significantly to Greenway objectives in The foundation for ISMPs is the more their current use (such as sewage treatment plants traditional shoreline hazard management activities curtailing water pollution, for example), in many undertaken by conservation authorities, but ISMPs cases they are managed solely for a single use. will be more comprehensive in their scope, With planning involving the owners and stakeholders integrating water quality, habitat, and recreational to ensure compatibility with present and future access concerns, and involving the full range of uses, they could contribute to a broader range of agencies, municipalities, and landowners with Greenway objectives. For example, buffer lands shoreline interests. The boundaries of each ISMP around generating stations and transmission should be based on the shoreline units shown on corridors could in some cases be managed to Map 3, or on major sections of shoreline units increase wildlife habitats; provincial or municipal defined by differences in shoreline character or parks could contribute to regional tourism littoral drift patterns. development strategies; water treatment plants could provide for public access, and so on. Another aspect of public land management is the treatment of the lake bed, most of which is publicly owned. Through a Memorandum of Understanding between MNR (the agency that administers provincial water lots) and the Trust, these lands will be retained in public ownership, except where significant public benefits can be demonstrated from their disposition (see Management and Disposition of Lake Ontario Crown Shorelands within the Greater Toronto Bioregion in the toolkit). AK ARIO GREENWAY STRA EGY

8.2: Land acquisition by public agencie At present, land acquisition programs along the waterfront are very much opportunity-driven. Land acquisition by public agencies usually takes A more coordinated strategy to acquire key proper- place through purchase, donation, or dedication ties in advance of development pressures, in during development, using the parkland dedication concert with other planning and stewardship tools, provisions of the Planning Act. In recent years, would be beneficial in the eastern half of the most of the acquisition has occurred at the Greenway. The involvement of conservation author- municipal level. Conservation authorities have ities, municipalities, and community groups will also played a major role, although their enthusiasm be important to a successful strategy. Every effort for land acquisition has been considerably should be made to tap into larger-scale acquisition dampened by the loss of provincial property tax programs such as The Nature Conservancy of rebates for ecologically significant lands. Public Canada’s Conservation of Great Lakes Biodiversity Burloak Park shoreline and bluff, Oakville purchase has also been an important method of initiative, the Eastern Habitat Joint Venture, and protecting culturally significant properties, either the Great Lakes Cleanup Fund. for future museum use or to be sympathetically altered for some other public purpose. In many cases, waterfront lands are also acquired by public agencies for other purposes such as municipal utilities or infrastructure. Public acquisition of key waterfront lands will remain an important implementation mechanism, particularly for the eastern portion of the Greenway where acquisition of important natural assets could take place at reasonable cost, and in the more urban parts of the Greenway where waterfront open space opportunities are scarce. In some cases, acquisition of access agreements or leases to provide for a trail link or other public access across private lands could be useful mechanisms. MPLEME

6.3: Landowner contact One stewardship tool with some limited application along the waterfront is the negotiation Landowner contact leading to private land of conservation easements, which place voluntary stewardship is a relatively new approach along the permanent restrictions on the future uses of a waterfront, but one that has been used successfully property. Recent amendments to the Conservation in other parts of Ontario for several years, primarily Lands Act extend the ability (formerly limited to for natural areas in rural settings such as wetlands the Ontario Heritage Foundation) to hold and and Niagara Escarpment lands. This technique enforce conservation easements to municipalities, enrolls landowners in voluntary programs and conservation authorities, and land trusts. This management agreements to protect significant should encourage greater use of this technique in natural features. Currently, programs are underway future to protect natural areas. in the Northumberland County waterfront area Stewardship activities provide considerable and in association with the Hamilton Harbour RAP opportunities for volunteer involvement, such as program. Metro Toronto identified a need to tree-planting on industrial lands, and a wide range establish a similar program for urban natural areas of other activities where community groups could near the waterfront in its 1994 Metropolitan enhance the waterfront by working cooperatively Waterfront Plan. with private landowners: Landowner contact and stewardship is an Further detail on landowner contact and appropriate tool for natural core areas, corridors, private land stewardship can be found in Creative - and possibly cultural and scenic landscapes Consmation by Hilts and Reid. b:P g wherever land uses are relatively stable; it is likely - to be less successful where land speculation in The Finch Meander, Rouge River advance of development is underway. Stewardship is primarily oriented towards the protection or restoration of the natural qualities of a property, and is less appropriate for arranging public access because of landowner concerns about liability and littering. In urban areas, formal stewardship programs involving private lands are an experimental concept, but there would appear to be much promise for working with owners of natural ravines or other habitats, as well as historic buildings and cultural landscapes.

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MPLEMENTATION

C. FUNDING AND INCENTIVES The Greenway Strategy is a long-term vision, with actions that will occur over many years. It C. I : Coordinating plans and projects with cannot and should not be tied to a single funding funding opportunities source or program; rather, as government capital and other funding programs at all levels evolve One of the keys to the successful implementation over the years, agencies involved in implementing of the Waterfront Trail over the past few years waterfront activities will continue to seek opportu- inding the dollars necessary to has been the coordination of the timing, design nities to attract investment in priority projects. regenerate the waterfront will and funding of various local projects. As the Continuing to prepare coordinated “packages” always be challenging. Although Humber Bridge example demonstrates, even a of related waterfront projects, similar to the much has been accomplished in single project can involve the coordinated actions Waterfront Trail provincial funding applications, recent years, new approaches, of many agencies. In all cases, however, progress will be an ongoing role for the Waterfront greater creativity, and the involve- has not come about because of a new dedicated Regeneration Trust. ment of a broader range of partner source of government funding allocated to will be necessary. Techniques to the waterfront, but rather through the coordinated C.2: Directing economic incentives finance the actions identified withi application of existing capital programs to this Strategy are summarized in waterfront projects. Government agencies direct a wide range of three broad categori Over the past two years, waterfront projects economic incentives of various forms, through have proven their worth in receiving allocations grant programs, subsidies, partnership arrange- C. I Coordinating plans and pro from jobsontarioCapital, jobsontario Community ments, and tax policies. Some of these incentives with funding opportunities Action, and the Canada-Ontario Infrastructure can be employed to assist in waterfront Works programs. Other provincial programs such regeneration, such as: C.2 Directing economic incentive as Ministry of Transportation’s highway construction allocations have contributed substantially to - Public spending on infrastructure projects C.3 Attracting private funds to development of the Waterfront Trail. along the waterfront can be positioned to encourage the maximum related private investment, and/or to trigger greater local involvement in community projects.

-175 LAK ONTARIO GREENWAY STRATEC

- Conditions can be attached to approvals, - Amendments to the federal Income Tax Act grants, or other funding to ensure that the should be encouraged to remove the tax resulting activities will contribute in a positive penalty paid by those who donate properties way to achieving the objectives of the Greenway to public agencies or charities. This taxation of Strategy. Some programs do this already - the a fictitious capital gain acts as a significant requirement for projects under jobsOntario disincentive to public-spirited citizens along Community Action, for example, to demonstrate the waterfront and elsewhere. The 1995 federal strong community involvement, is consistent Budget partially addressed this concern. with Greenway objectives. In other areas Donors of some types of ecologically sensitive such as agricultural subsidies, there is increas- lands can now claim the resulting donation ing interest in “cross-compliance”with credits against 100% of their annual income, environmental standards. rather than the 20% limit which existed previously. This will assist some donors - The property tax system can be used to create in avoiding a major tax penalty, but further incentives for protection of natural areas, reform in the capital gains area is also necessary. archaeological sites, and public access. Under the Conservation Lands Act, private owners C.3: Attracting private funds to of provincially-significant natural areas now waterfront projects qualify for a provincial rebate of their property taxes, which is a valuable aid to stewardship. A community that appreciates the potential of its However, this program has been withdrawn waterfront, and that is mobilized to help improve from conservation authority lands, and is the health and accessibility of that resource, relatively limited in scope in the face of a new can be very effective in finding non-government understanding of provincially-significant resources to help achieve its goals. Already the lands through the Comprehensive Set of Policy waterfront has benefitted from the involvement of Statements. A more cost-effective incentive may service clubs, industries, local landowners and be revisions to the Assessment Act to include citizens in waterfront projects. Working in partner- a category of Conservation Lands, so that ship with community groups, there is also natural areas would no longer be assessed at enormous potential for innovative fund-raising, residential or agricultural values. from events and donations, to sponsorships, bequests, and foundation grants.

I76 MPLEMENTAT ON

To attract private funds, waterfront agencies ... I and organizations must communicate the community values of the projects they propose, identify clear opportunities where private funds are welcomed, and create appropriate mechanisms to handle funds from private sources. Corporate sponsors, for example, need projects that bring some form of public recognition of their involvement; private donors may need a donation receipt for tax purposes from a charitable organization. Identifying projects with clear benefits is all-important - for example, a.senior's group might gladly fund a waterfront bench in a municipal park where they clearly see the benefits to their members. Private-sector involvement in waterfront projects does not always have to be in the form of dollars. The donation of materials or services can be an important and effective way for industry to take part, and can have long-term benefits of Commissioner David Crombie, Mayor Ann Mulvale of Oakville, MP Bonnie Brown, and increasing community involvement well beyond the Municipal Affairs Minister Ed Philip announce funding for the Oakville portion of the short-term financial value. School boards and Waterfront Trail. Partners include jobsOntarioCapital, the Town of Oakville, the Oakville individual schools could participate by contributing Waterfront Festival and Oakville Arts Council volunteers, and the private sector. volunteer labour to Greenway projects as part of outdoor education or environmental programs. The endowment fund currently being investigated by the Waterfront Regeneration Trust would be another effective way to attract private funds to waterfront projects, by providing a vehicle for the involvement of individuals, community groups, and corporations.

-177 ONTAR 0 GREENWA STRATEGY

DEFINING ROLES FOR WATERFRONT such as the Ministry of Culture, Tourism and REGENERATION: Recreation's local grant programs, the environmental assessment and regulatory programs of the Ministry esponsibility for implementing the Lake Ontario of Environment and Energy, the planning Greenway Strategy cannot rest with any single policy framework administered by the Ministry Ragency. Rather, each of the agencies, municipali of Municipal Affairs, and the capital grant and ties, and groups with an interest in the waterfront needs bicycle policy programs of the Ministry of . v"19. to review its own area of responsibility and actions, Transportation. Special funding programs such a'..' . ...-..-. ,- ,.." to ensure that it is contributing in a positive way to as jobsontarioCapital and jobsontario Community ' . 1 achieving the vision and objectives of the Strategy. Action also play an important role in waterfront regeneration. Y The Waterfront Regeneration Trust has a Federal agencies with a significant role along the waterfront include the Harbour Commissions, which oversee major harbour facilities, and the Department of Fisheries and Oceans and R.C. Harris Water Filtration Plant, Toronto to consult with the public, to advise the Province, Department of Environment, with interests and and to facilitate the establishment of the responsibilities in small craft harbours, fisheries, Waterfront Trail and associated green spaces. Great Lakes ecosystem health, wetland habitat con- The Trust will continue its leadership role servation, and protection of migratory birds. in bringing waterfront municipalities and Federal departments also have a responsibility to agencies together to address issues of common continue to coordinate their policies and concern, coordinating funding proposals programs with provincial agencies. In some cases, for waterfront regeneration projects, reporting joint funding programs such as Canada-Ontario regularly on progress and challenges, and Infrastructure Works play a role in promoting appropriate conservation and use of waterfront projects. waterfront places. Conservation authorities have responsibility Many provincial agencies are active in water- for conserving natural resources in their waterfront matters.The Ministry of Natural Resources sheds, and play an important role in waterfront has responsibility for provincial parks and planning. They are also major landowners in Crown waterlots as well as the regulatory tools some parts of the Greenway, and have a strong described earlier. MNR should take the lead in role in natural core area and corridor protection, reducing the overlap among regulations and ecological restoration, watershed planning, and permit requirements for waterfront activities. public access. They are expected to play a leading Other Ministries have a role in administering role in development of an integrated shoreline their Province-wide programs within the Greenway, management planning system. ME TAT 0

Municipalities (both local and regional levels) The business and industries along the along the waterfront are the front line in delivering waterfront will also have an important role, both many waterfront programs, including the land by creating opportunities for employment and use planning system, recreation facilities, water and economic growth, and by making parts of the wastewater treatment, and various regeneration waterfront more accessible and attractive. projects. Their commitment and involvement has Finally, the importance of community groups been a key factor in the success achieved to date, and individuals cannot be overlooked. An essential and will be critical to future actions. part of waterfront regeneration is the grass-roots The academic community will be encouraged involvement of people who live and work in the to play a greater role along the Greenway, Greenway, many of whom care passionately about especially in educating students, researching the its future. From trail users, tree planters and tourist many remaining questions about how to create operators to environmental watchdogs, private a waterfront that has ecological health, a sense of investors, and service clubs, there are endless community, and economic vitality, and monitoring opportunities for people to get actively involved the results of regeneration actions. in regenerating the Lake Ontario waterfront. First Nations peoples will be encouraged to play a stronger role in future, to raise public awareness of the long history of native use of the waterfront and its resources, and of the spiritual significance of waterfront sites.

Summer sailboarding

-179 LAKE ONTARIO GREENWAY STRATEGY

Beyond the recognition of roles in implementing the Greenway Strategy, there is the question of establishing priorities, to decide which steps come next within the constraints of limited resources. In part, these questions are addressed in the companion document, Lake Ontario Greenway Strategy: Next Steps, which identifies regeneration goals and short-term opportunities and actions for landscape units along the Greenway. The Steering Committee (see Appendix B), which represents the range of agencies and groups involved in the Lake Ontario Greenway, will continue to meet regularly to exchange information and experiences, discuss priorities, monitor progress, address common issues, and maintain the momentum towards waterfront regeneration. Workshops sponsored by the Steering Committee will be held to provide opportunities for more technical discussions of Greenway topics. When needed, special workgroups will be formed to develop ideas and undertake many of the actions outlined in this Strategy. The challenges of the Lake Ontario Greenway are great, often beyond the ability of any one individual, group or agency. But by working together with a shared vision, there is no doubt that the progress already made to regenerate the waterfront will be sustained and multiplied in the future.

180 -

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