CHAPTE R t t : SCARBOROUGH

In 1793 Elizabeth Simcoe,wife of the first lieutenant governor of Upper , wasimpressed by the massivebluffs that lined the shoreline east of the colony's new capital: they reminded her of the scenic Yorkshire cliffs in Scarborough, England; the area wastherefore given the name Scarborough.Designated a township in 1850, Scarborough became part of Metropolitan in 1953, and wasofficially declared the cultural heritage of the people and the a city in 1983. natural heritage of the bluffs. In this regard, The Scarborough waterfront com- a two-tiered linking to a prises 20 kilometres (12 miles) or 40 per regional greenwaywould be beneficial in cent of Metro's shoreline. The area contains the City of Scarborough. the highest proportion of single detached A visit to Bluffer's Park, one of the dwellings and owned housing along the most popular regional recreational parks, Metropolitan . where one can fish, boat, sit on the rocks The extent to which the Scarborough or simply stroll in the park admiring the waterfront is alreadyurbanized (primarily in striking views of the bluffs year-round; a fall single-family homes) and the presence of walk in the Rouge Valleywhere one can the bluffs makes it more difficult -although encounter animals and view rare birds, or not impossible -to connect people to smell winter coming and seethe wonders of the water and to establishsafe public access nature at work as the leaveschange colour; compatible with waterfront trail objectives. the serene feeling that comes from being In fact, implementing a greenwaysystem surrounded by the history and artifacts at can take the establishedurban residential the Guild Inn with the peaceful view of communities into account, respecting the the shimmering lake and the sun setting limited opportunities available to protect from atop the bluffs -these are only a few

415 a marvellous opportunity to educate the public about the bluffs. Only two major waterwaysin Scarborough flow into Lake : and the Rouge . The Highland Creek -lying entirely within the City -drains an area of over 105 square kilometres (40 square miles). The watershed,which coversmore than 300 square kilometres (116 square miles), encompassesportions of six local municipal- ities. Its lower reachesare predominantly in northeastern Scarborough, and the river eventuallyforms the southeasternportion of Scarborough'spolitical boundary. The Rouge's spring-fed headwaters rise in the Oak RidgesMoraine, and flow rapidly down the moraine's shoulders. Many small streamscome together on flat agri- cultural plains in Markham to form slower- moving major tributaries. Before the At the foot of the bluffs, circa 1968 two main branches of the river, the Rouge and Little Rouge, reach Scarborough they of the memorable experiencespossible in form large, well-defined valleys,tumbling Scarborough, a short distance east of the over boulders and rocks. Natural erosion commercial and economic activity in down- processeshave exposed geological features town Toronto. In many instances,access to that are provincially significant, as well as these placesis limited and could be greatly distinctive bluffs that are as high as40 metres enhanced if there were a regional green- (131 feet). In the last few kilometres before wayssystem across the waterfront and up the the Rouge River enters , it river valleys. (See Chapter 5 on Greenways.) broadensinto the Rouge Marsh-the largest Natural topography has alwayscon- provincially significant area in Metropolitan tributed to defining urban form along this Toronto -housing exceptional wildlife portion of the shoreline. The Scarborough populations. Bluffs, which stretch as high as 100 metres A 1991 draft MNR Ecological Survey (330 feet) in some placesand account for of the Rouge ValleyPark notes (Varga, 75 per cent of Scarborough'swaterfront, are Jalava, and Riley 1991): a unique heritage site the City and MTRCA Collectively,the lower Rouge valleys, strive to protect. An educational learning lakeshore marshesand adjacent table- centre along the Scarboroughwaterfront, lands are the most significant system specificallyfocused on the various environ- of linked natural areas along any of the mental processesoperating there, would be lower river valleys draining into the [sic]

416 northwestern Lake Ontario. The Rouge Over the years,the Rouge River system [in Scarborough] representsone of in Scarboroughhas largely escapedurban- very few substantivecorridors of natural ization and is a healthy and diverse eco- spaceextending systemtoday. In the from the north- () 1980s,proposals western shores The Rouge's spring-fed headwaters were presented to of Lake Ontario rise in the , and flow Scarborough Council towards the inte- rapidly down the moraine's shoulders....to develop the Rouge rior of Halton, The area contains a remarkable diversity tablelands in the Peel, York, Durham of natural and rural heritage features. ..city's northeast; or Metropolitan one of the last opportunities for ecological after extensive study, Toronto. The conservation on this scale in Metro. Council decided to Rouge River and its () protect the area valleysare excep- and designate it as tional among [other] watercourses Regional Natural Environment for rural from severalpoints of view. uses. However, in adjacentand upstream From one side of the valley to the areas,development has led to the destruc- other, the Rouge River corridor averages tion of woodlots and wetlands, has replaced two kilometres (one mile) in width. The tall grassesand other natural habitat with area contains a remarkable diversity of manicured lawns,and has introduced natural and rural heritage features and is erosion and water quality problems due to especiallyimportant becauseof its proximity inappropriate stormwater management. to -one of the last In its first interim report (1989), the opportunities for ecological conservation Royal Commissionsupported the views on this scale in Metro. of many interest groups, recommending

Lookingwest from the RougeMarsh

417 in the Rouge and Petticoat Creekwatersheds (provincial land assembly),and tablelands along the top of the valleys. Consultantshave been commissioned to work with the appropriate agenciesto examine the area's ecological and cultural inventory and assistin drafting manage- ment strategies.While the goal of creating a park has been declared and park plan- ning has begun, it is possible that the land under study, especiallyin York Region, could be environmentally degraded by development of surrounding parcels of land. The City of Scarboroughis currently examining its secondaryplanning policies to ensure that areasadjacent to the park are adequatelyprotected. The Advisory Committee has asked that these areasbe protected in the interim, before degrada- tion precludes future park options. that the Rouge River Valley be protected as The health of the Rouge watershed a natural heritage park. In March 1990, the and the long-term ecological integrity of provincial government announced its inten- the park depend on the extent and environ- tion of creating a Rouge ValleyPark and mental sensitivityof development in the rest establishedan advisorycommittee on the of the watershed. Proper controls such as subject. This professionallydiverse group is stormwater managementand protection of responsible for drafting a park management valley corridors, including adjacent table- plan for the portion of the park between lands, are essential.As part of its mandate, Lake Ontario and SteelesAvenue (see the Rouge Park Advisory Committee reviews Map 11.1.). The main goal is to ensure development applications that will affect protection of the ecological integrity of the the park. Rouge Valley Park and its natural, scenic, Obviously, development adjacent to historic, and cultural values, through inno- the Rouge Valley should protect ecological vative planning, management, and use in processesand maintain the natural beauty the park and its environs (Rouge Valley of the valley. The natural profile of the sky- Park Advisory Committee 1991). line has been marred, in many urban valleys, ByJune 1992, the committee is to by high-rises. Scarboroughhas begun to recommend a strategyand time-frame for addressthis issue. Other municipalities with protecting the park area and is likely to similar vall,eyresources should ensure that address extending its current northern appropriate height controls and develop- boundaries to include publicly owned lands ment siting maintain and enhance views.

418 TheGuild Inn and the ScarboroughBluffs

The Commission supports the initial which takespublic input into account, work undertaken on the Rouge ValleyPark, should begin as soon as possible,even while and urges creation of a comprehensivestrat- planning proceeds for the northern half of egy to ensure that, manyyears from now the park. when the park is completed, it is ecologically As part of this process,thought should healthy. Implementation of the strategy, be given to a greenwayprotecting the

419 SCARBOROUGH'S GUILD OF ALL ARTS

The unpretentious gates on the Parkway,along the waterfront in suburban &arborough, are deceiving. The narrow drivewayopens up and foliage gives way to reveal a picturesque inn surrounded by what seemto be Grecian artifacts and ruins. The pieces of Grecian architecture, marble sculptures,and reliefs dispersed on the grounds of the Guild Inn look mysterious,arresting -and completely out of place. In fact, they are out of place: they were savedby Spencer Clark when the rest of the buildings of which they were a part were destroyed in the 1960sand '70s. They are all that remains of many of the finest examples of classical19th-century architecture that were tom down to make way for designs from such contemporary architectural schools as Bauhaus. One finds echoes of civilization's architectural past in four imposing columns on the north grounds of the Guild Inn. These Ionic columns and capitals, from a period prevalent in the fifth and fourth centuries B.C., once graced the Bankers Bond building, on a site now occupied by First Canadian Place,the tallest building in Canada,designed by Edward Durrell Stone.

Corinthian columns and capitals replaced Ionic in the fourth and third centuries B.C. Examples of the Corinthian style can be found in the salvagedmarble columns at the Guild; they were once part of the Bank of Toronto, which stood on the site now occupied by Mies vanderRohe's Toronto-Dominion Centre and are among the 21 capitals and columns that form an amphitheatre, designed by the late Ron Thom, on the south grounds of the Guild Inn. Although the practice of stone masonryhas declined, the Guild -where many of the capitals, pediments, and bas-relief carvings are at ground level, albeit out of con- text -offers the opportunity to fully examine and appreciate the craftsmanshipof the salvagedpieces. There are more than 50 demolished buildings represented at the Guild, a monu- ment to Spencer Clark and his vision of preserving at leastsome of Toronto's architectural past. The collection should be cherished and enhanced in every waypossible. Sources:Cowan, H. November1984. 'The ruins of winter." Cityand Country;The SpencerClark Collectionof HistoricArchitecture.

waterwaysand valleylandsthat feedinto River, housesa unique collection of the RougeRiver. This would help establish architectural pieces.Established in 1932 by connectionsto significantnatural areas such Rosaand SpencerClark, the site wasthe asthe Oak RidgesMoraine and Duffin's original home for The Guild of All Arts, Creek,conservation areas, and existinglocal a thriving artists' colony. As Toronto's busi- and regionalparks. nessbuildings were being demolished over The Guild Inn, atopthe bluffs on the years, Spencer Clark collected historic Scarborough'swaterfront west of the Rouge landmarks and kept them on the inn's

420 grounds. He eventually sold the land and WATERSHED UPDATE its buildings to the Province and Metro In the pastyear, the City of Scarborough in 1978; Metro establishedthe Board of continued to addresswaterfront planning Management of the Guild in 1983,to man- -and, indeed, city-wide planning issues- age the property on its behalf. With the with an ecosystemapproach, which has been change in ownership came a change in well received at the political, bureaucratic, direction in the vision of the site's future: and community levels. recent proposals are that the inn be rede- In October 1990, the Scarborough veloped as a substantiallylarger hotel/ Waterfront Committee recommended convention centre. However,formal adoption of the ecosystemapproach, plans have yet to be submitted to the City the nine waterfront principles, and other by Metro. Commissionrecommendations as interim Scarborough's population has grown waterfront policies for Scarborough. Over substantially- from 1,711 in 1900 to more the following nine months, public meetings than 267,000 in 1967-and has risen by were held and policies presented and approximately 11 per cent since 1981; it is discussed.In July 1991,City Council approved estimated to grow to more than 560,000 Official Plan Amendment 799, giving basic by 2001. The increasebetween 1990 and direction to activities along the city's 20 kilo- 2001 -more than 12 per cent -would metres (12 miles) of waterfront and consis- be the greatest in any Metropolitan Toronto tent with the Commission'sviews. municipality, and greater than the increase There is clearly no current agreement in the region, estimated at eight per cent, on the nature of regional co-ordination - for the sameperiod. a crucial step, in the Commission'sview, in In the early 1980s,population in the successfulplanning for the future. The City's Scarborough waterfront grew moderately, view is that the leading role in local water- at about one-third of that of the City; the front planning should remain in its hands, number of children living in the area were with regional co-ordination from Metro and evidence that it had the highest proportion continuing participation from MTRCA. It of families in Scarborough. believes that Metro Toronto has not clearly Housing starts on the waterfront defined its own role in waterfront planning, increased substantiallyin the late 1980s.In in the recently released PlanningDirections contrast to other municipalities in Metro, for theMetropolitan Waterfront: An Overview the Scarborough waterfront area has the (1991), which wasintended to be the basis lowest proportion of high-densityresidential for discussionbetween Metro and other housing. It is also the most exclusivewater- local municipalities on establishinga regional front in Metro, with the highest proportion waterfront plan. Scarboroughplans to con- of single detached dwellings -they com- tinue to develop its waterfront on the basis prise more than half the waterfront housing of connectednessand safepublic access, stock -and the highest proportion of own- and is working with Metro, MTRCA, and ership housing. Total employment in the others as necessary. Scarborough waterfront area rose by more In its Watershedreport, the Commission than 50 per cent in the '80s. recommended that the environmental

421 conditions of industrial areas such as the taken, based on desired land usesand capi- Johns-Manville site be investigatedbefore talizing on waterfront opportunities. Terms being considered for redevelopment. The of reference note that consideration should major issue currently facing the City is be given to appropriate land useson the whether to retain industrial usesin the waterfront and that the Commission's nine 60-hectare (150-acre)Centennial Industrial principles should be implemented. The District adjacent to Lake Ontario. Lands report is to be available early in 1992. north and east of the Centennial Industrial This is the City's most significant District are comprised of establishedresi- opportunity to enhance residential use and dential communities, primarily of single- create a new waterfront community. The family homes. area, including the Rouge Hill GO station, As the Commission noted in Watershed, has the most potential to bring people to there is a potential "to establisha new resi- the waterfront. Scarborough's decision dential area, the Port Union Community", about desired land usesshould ensure on the Scarboroughwaterfront. Since then, that future development of the Centennial the City has continued to deal with applica- Industrial District is compatible with the tions from developersand landowners waterfront The historically significant old seekingto redesignate and rezone industrial Port Union Village should also be restored lands for alternate (primarily high-density and preserved in future plans for the area. residential) uses.In December 1990, The CNR line running along the shoreline Scarborough Council approved a Study now forms a barrier to Lake Ontario, and of Options and Opportunities for the consideration should be given to waysof Development of the Centennial Industrial increasing public access. District. Urban designers at a recent charette havesuggested that the Centennial Industrial PLANNING INITIATIVES District also has potential as a gatewayto The purpose of the study, undertaken the city for visitors arriving by water. A cere- by City staff, is to assessthe feasibility and monial entrance to the city would reflect the desirability of retaining current industrial grandeur of the bluffs; it could connect to usesand to outline the next stepsto be ScarboroughCity Hall via a tree-lined parade

Proposedceremonial waterfront entranceat the foot of Port Union Road

422 route. Port Union Road could become the waterfront. Appropriate public amenities major organizing element of the commu- should also be provided and linear access nity, anchored by nodes at both ends. A connecting one part of the waterfront with public facility at the water could include a the others should be a priority in preparing gatewayto the City and the beginning of and reviewing all proposals. a "ceremonial drive" from the waterfront to The concerns that Watershedexpressed Scarborough City Hall; the north end could about the focus of the Draft EastPoint Park house a strong commercial node or other Master Plan/Environmental Assessment feature that delineated the entrance to a and the environmental effects of lakefill, new Port Union community. road access,traffic, and safetyare being The Commission also made recom- addressed.Following the release of mendations on redeveloping the publicly Watershed,and while the Commission's owned Guild Inn site. Watershednoted that review of shoreline regeneration was under local interests should be fully considered way,MTRCA exercisedmore caution in pro- by the City of Scarborough in evaluating ceeding with lakefill projects. In 1991, the redevelopment proposals,and that such Authority began to study the effects of pro- evaluations should be based on waterfront posed lakefill for East Point Park on water policies and should conform to the circulation, water quality, and adjacent nine waterfront principles. An initial pro- intake/ outfall pipes. This is scheduled to posal by the lessee,including high-density be completed by mid-1992. development, met public resistanceprimar- As a potential major project requiring ily from residents of the Guildwood commu- lakefill, EastPoint Park should be evaluated nity. BecauseMetro, the Guild Inn's owner, in the context of the Shoreline Regenera- did not approve of the proposal, it was not tion Plan recommended in Chapter 4. submitted to the City. No revised proposal Added public concern has risen about has yet been submitted.. including a Metropolitan Toronto sports Plans to redevelop the Guild Inn should not have an adverseimpact on the surrounding community, which has existed since the 1950s.This is particularly true with The danger, as we are now beginning respectto traffic and accessto the waterfront, to see, is that whenever we make which should retain its existing natural, changes in our surroundings, we can cultural, and small-scalecharacteristics. all too easily shortchange ourselves, If the Centennial Industrial District by cutting ourselves off from some of and the Guild Inn lands become engulfed the sights or sounds, the shapes or by inappropriate, added elements of built textures, or other information from form, chancesfor added public accessand a place that have helped mold our views to the water will disappear in key understanding and are now necessary places along the shore. The City should for us to thrive. -c. . ensure that approved built forms are sensi- HisS...T.1990. The~ence oJplace. New York: tive to the water's edge, enhance viewsand AlfredA Kriopf. vistas,and encourage people to visit the

423 facility complex in East Point Park. The pro- heritage; in this regard, a local waterfront plan posed site would possibly destroy habitat for is recommendedfor the City of Scarborough. rare plants, such as the white bottle gentian, as well as for migrating birds, and other ani- RECOMMENDATIONS mals. Legally, the sports facility plan is an individual proposal, separatefrom the 75. The Royal Commissionrecommends Conservation Authority's plan for the that the City of Scarborough, the remainder of the park. In mid-1990, the Regional Municipality of Metropolitan provincial Ministry of the Environment Toronto and the Metropolitan granted Metro exemption of the sports Toronto and Region Conservation facility from an individual environmental Authority review relevant documents assessment,on the grounds that it met the including official plans and other criteria for municipal recreation projects waterfront-specific plans to ensure with an estimated cost of less than $3.5 mil- that they incorporate the ecosystem lion. However, it should be noted that this approach and nine waterfront decision did not include consideration of principles described in Part I. alternative locations or the likely effects of the facility. 76. The Commission further recom- The Ministry of the Environment has mends that the City of Scarborough, been asked to review the situation, and is Metropolitan Toronto and MTRCA currently considering whether the proposed participate in preparing the proposed sports facility should be subject to an indi- shoreline regeneration plan, including vidual environmental assessment,rolled into the waterfront greenwayand trail one that already existsfor East Point Park, and ensure that any other plans for or if it should remain completely exempt. waterfront areasare reviewed and/or The Commission hopes the Ministry review developed in this context. will result in a process that recognizes existing studies and addressesthe need for 77. The Province of Ontario, the Regional a comprehensive evaluation of the plans for Municipality of Metropolitan Toronto, the entire park, with a view to maintaining and the City of Scarborough should and enhancing the environmental integrity negotiate a Waterfront Partnership of the area. Agreement in conjunction with For the past 32 years, planning in the appropriate authorities and agencies. City of Scarborough has been based on the It should: 1959 Official Plan, which now has more than 800 amendments. The Commission believes .clearly identifythe rolesand that the plan should be revised,giving added responsibilitiesof various emphasisto protecting and enhancing the agenciesand authoritiesin devel- natural environment, while addressing opingand implementingplans economic and community needs. Thought for the Scarboroughwaterfront; should also be given to protecting and .offer comprehensivewaterfront enhancing Scarborough's waterfront and its and river valleypolicies, taking

424 into account the environmental 78. The Province of Onmrio, Metropolitan vulnerability of the Scarborough Toronto, and the City of and the Rouge River Valley should ensure that any redevelopment area. Such policies should out- of the Guild Inn respectsand enhances line waysto acquire, maintain, its natural, historic, cultural and small- and provide accessto land scalecharacteristics and maintains along the waterfront and up public acccessto the site. the river valleys.They could take the form of a waterfront plan and should be incorporated into the City's official and secondary plans; .encourage continued develop- ment of a waterfront trail, including a two-tiered trail in Scarborough as part of the regional greenwayand trail system,one route above the bluffs and one at their base. The systemshould also enhance accessnodes to the waterfront, improve accessto Bluffer's Park, and include facilities to educate the public on the geological processesthat contributed to formation of the bluffs; and .ensure that future land usesof the Centennial Industrial District are compatible with maintaining and enhancing the environmen- tal integrity and public use of the waterfront. The opportunity to develop a new community that is integrated with the waterfront should be evaluated,and priority given to waterfront urban design guidelines. Consideration should also be given to waysin which the CNR line, which is a significant element in this area, can be better integrated to form a lessobtrusive barrier to the waterfront.

425

CHAPTER 12: DURHAM

Durham Region lies eastof York Region and Metro Toronto, partially surrounded by the shorelines of three lakes-Simcoe and , which are north of the Oak Ridges Moraine, and approximately 62 kilometres (39 miles) of Lake Ontario shoreline to the south. The Regional Municipality of Durham ~ameinto being in 1974,a year after the Province of Ontario introduced the concept In this portion of the Greater Toronto bio- of regional government. Sevenof the region's region, waters that flow into Lake Ontario eight local municipalities are adjacent to include the Rouge River, Petticoat Creek, water; of these, five -Pickering, Ajax, and Frenchman's Bay in Pickering; Duffin Whitby, Oshawa,and Newcastle-are adja- Creek and Carruther's Creek in Ajax; cent to Lake Ontario. Durham encompasses Lynde Creek in Whitby; Oshawa,Harmony / about 40 per cent of the Greater Toronto Farewell, and Black creeks in Oshawa; bioregion's Lake Ontario shoreline, but is Bowmanville, Soper,Wilmot, and Graham the most undeveloped region acrossthe creeks in Newcastle;and the Ganaraska area, currently housing only about 20 per River in Newcastleand Port Hope. There cent (about 70,000people in 1986) of the are Master Drainage Plans only for the total waterfront population. Petticoat Creek and Carruther's Creek The region is inside the boundaries watershedsand a ComprehensiveBasin of four conservation authorities: the ManagementStrategy (1990) for the ConservationAuthority, Rouge River area. the Metropolitan Toronto and Region The Durham shoreline comprises a ConservationAuthority, the Central Lake variety of elements, including peaceful and Ontario Conservation Authority, and the relaxing natural areas,active urban parks GanaraskaRegion ConservationAuthority. and open spaces,new and old residential

427 neighbourhoods and communities, marinas, could be made more diverse,to provide a large and small public utility buildings, variety of experiencesalong the shore. and a significant industrial component. Approximately 70 per cent of Whitby's The region's nature lovers and bird- waterfront is publicly owned. Residentsand watchers are among the many people who nature lovers can enjoy watching wildlife enjoy visiting such natural habitat areas in the rich vegetation and marshes of the as Frenchman's Bayand its surrounding Lynde Shores ConservationArea. To the marshes;the Petticoat Creek Conservation east,the current Whitby Psychiatric Hospital Area in Pickering; Carruther's Creek and its lands are informally accessibleto the public, marshes in Ajax; and the Lynde Shores and are currently being evaluated for insti- Conservation Area in Whitby. LakeviewPark tutional and residential redevelopment. The in Oshawa,which has its recreational facili- provincially owned site offers spectacular ties and historical buildings, is well-used by views of the Lake Ontario shoreline to the families. In Newcastle,Darlington Provincial eastand west;future changesto built form Park catersto passiveand active park users should maintain and enhance theseviews. with many natural open spaces.Wilmot Plans call for future residential and Creek to the eastis well-known for its superb recreational uses,including parkland fishing. and open space,on the dilapidated Whitby The Town of Pickering offers examples Harbour and surrounding lands east of the of both old and new, ranging from modern hospital site. The remainder of Whitby's residential subdivisions waterfront is indus- to country estates,and () trial, but the Town including hamlets The Town of Pickering offers examPles hopes that eventually andvillages with rural of both old and new, rangingfrom it can ensure public charm, rich farmland modern residential subdivisions to accessacross the areas,and vastexpanses country estates,and including hamlets entire waterfront. of parkland and natural and villages with rural charm, rich Almost 80 per open space.Existing farmland areas, and vast expansesof cent of Oshawa's public facilities, such as parkland and natural open space. waterfront is owned the Pickering Nuclear () by public agencies, Generating Station and about half of it - the Duffin Creek Water Pollution Control including the harbour area and the environ- Plant, are necessarystructures on the water- mentally sensitiveSecond Marsh -by the front and have become virtual built-form OshawaHarbour Commission; most of the landmarks on Pickering's shoreline, visible remainder is public parkland or from enormous distancesalong Lake conservation authority land. Ontario. Lakefront Park Westand LakeviewPark Ajax has as much rural charm as are the city's two major waterfront parks and Pickering, but is becoming increasinglyurban- future plans for the former include a water ized. Future development should protect theme park and a marina. Natural amenities and enhance its natural and cultural heri- and the numerous children's recreational tage; current open spaceson the waterfront facilities are often used by nearby families.

428 LakeviewPark has a more natural envi- economy and the distribution of regional ronmental focus and historical background: population -is the highest predicted for the area is linked to extensivevalleylands any of the four Greater Toronto waterfront to the north and could be linked to the regions. OshawaHarbour area to the east.The prop- Urbanization in Durham is centred erty was formerly farmland, most of which in three major nodes: Pickeringf Ajax, wasowned by the Henry family and by other WhitbyfOshawafCourtice, and Bowmanvillef early pioneers and their descendants;it was Newcastle.The BowmanvillefNewcastle acquired and donated to the City by General area will continue to grow the most. A large Motors of Canada for use as a public park. number of residents in Durham commute The old buildings and their contents tell to Metropolitan Toronto by car or GO the story of Oshaw a's history: the Henry Transit. Any future eastwardexpansion House Museum, one of the oldest housesin of GO Transit would reduce the current Oshawa,was the home of Thomas Henry, a proportion of automobile commuters. famous pioneering citiZen, in the mid-1800s. Most of Pickering's waterfront area- Robinson House, built in the 1840s,is his- extending south of Highway401 to Lake toric and has an unusual architectural design: Ontario from the Rouge River in the west originally a seaman'stavern that served to Duffin Creek in the east-is residential, sailors docking at the Port of Oshawa,in mostly low-density,single-family homes. 1965 it wasrestored and establishedas an The town has the highest averagehousehold addition to the Henry House Museum. The income on the Durham waterfront. Thirty- OshawaHistorical Societyplays a major five per cent of Pickering's residentslive role in ensuring that these buildings are on the waterfront and approximately two- preserved and restored. thirds of them work in Metro. East of the The Newcastleshoreline is marked by Frenchman's Bayarea, the waterfront is Ontario Hydro's Darlington Generating given over to industrial usesincluding the Station and the St. Marys Cement facility. Pickering Nuclear Generating Station. The vast remainder of the waterfront is cur- Almost all of the Ajax waterfront is rently given over to rural and natural areas, also residential, with more than 60 per cent except at the Port Darlington Marina and (more than 23,000 residents) of the town's the Wilmot Creek Retirement Community. total population living in the waterfront In addition to fishing in Wilmot Creek, area -an increase of more than 20 per some residentsuse the vacant agricultural cent in five years,with the potential for and waterfront lands for recreational more residential waterfront development. purposes to discharge firearms. This is Much of the Ajax shoreline consistsof a concern for nearby residents. waterfront open space,large areas that have Durham Region's population increased accumulated over time. slightly in the early 1980sand is expected Whitby has the lowestwaterfront to grow by approximately 65 per cent from population in the Durham waterfront area, 1986 to 2001; it is currently estimated at in proportion to total residents: lessthan 370,000.This forecast-based on factors five per cent of the town's residentslive including the growth rate of the regional there. This is probably becauseso much

429 Duffin Creekat LakeOntaria land in Whitby's waterfront area has been The OshawaHarbour area also houses designated for industrial and institutional active port users including McAsphalt, uses.Similarly, only about 15 per cent of Chieftain Cement, lASCO, and Courtice Oshawa's125,000 residents live in the Steel; occasionalusers include General waterfront area. Motors of Canada,General Electric, Honda Becausemuch of Newcastle'sshore- Canada,and Molson Breweries. line is undeveloped, only 29 per cent of The two major employers in Newcastle Newcastle's34,000 residents currently live are Ontario Hydro's Darlington Nuclear in the waterfront area. Generating Station and the St. Marys Major waterfront industry is located Cementoperation. primarily in Whitby, Oshawaand Newcastle. East of Cranberry Marsh and the Lynde THE REGION Shores area, most of Whitby's waterfront The Region of Durham and its water- is given over to industrial uses including the front municipalities have a unique oppor- Lake Ontario Steel Corporation (LASCO). tunity to preserve their natural shoreline, In the late 1980s,78 per cent of Oshaw a's significant natural areas,and natural water- employment on the waterfront was in front features, which are so abundant processingand machining occupations. when compared to the remainder of the The city continues to be a strong industrial bioregion's waterfront. An ecosystem base in the region, but will be greatly approach -considering the economy, the affected if and when downsizing occurs environment, and the community -and at General Motors of Canada,Oshawa's the Commission'sprinciples have been largest employer. endorsed by the Region and most of the

430 areamunicipalities, providing a goodbasis Hale environmental consultants for future growthand development. (1991) completed an Environmental ManagementPlan for the Lynde Shores WATERSHED UPDATE Major Open Spacearea in Whitby; In its Watershed(1990) report, the .a long-term managementplan was Commission urged the Province to nego- completed for the Pumphouse Marsh tiate one or more Waterfront Partnership in the City of Oshawa,with a view ~o Agreements with the Region of Durham, preserving and protecting the existing other levels of government, and other ecosystemand enhancing the natural appropriate parties, in order to co-ordinate qualities of the marsh; and future activities along the waterfront. It also .various studies have been undertaken recommended that these agreementsbe on the Second Marsh; a steering com closelylinked to prepa- mittee is considering ration of a Durham how to implement Waterfront Plan, which The Region of Durham and its short- and long-term would include 17envi- waterfront municiPalities have a unique plans for rehabilitat- ronmental, economic, opportunity to preserve their natural ing, protecting, and and community- shoreline, significant natural areas,and preserving it. oriented goals that natural waterfront features, which are should be reached as so abundant when compared to the Amongthe part of an ecosystem remainder of the bioregion's waterfront. remainingnatural approach to planning. areasalong the water- Since then, progress front thatshould be has been made in this regard. protectedare McLaughlinBay, the Wilmot Stepsto establishstrategies that will CreekMouth, and the Bond HeadBluffs in maintain and protect significant natural the Townof Newcastle. habitats have been taken in various parts of Durham Region: REGIONAL PLANNING POLICIES .the Province of Ontario commissioned In 1991 the Region of Durham a study of the Frenchman's Bayarea to approved its revised Official Plan, which is evaluate the state of its environment; being reviewed by the Province of Ontario. further study is proposed; The revisedDurham Official Plan generally .Runnymede Corporation, landowners endorsesthe nine waterfront principles and in the Carruther's Creek area, com- encouragesa healthy working relationship missioned M. M. Dillon to prepare an with the local municipalities to implement Environmental ManagementPlan for environmentally, economically, and socially the Carruther's Creek area; sound planning principles. The document .working on behalf of the surrounding includes general policies directed towards landowners (including the Ontario implementing an ecosystemapproach, used Ministry of Government Servicesand to define some broad objectives.Emphasis is the Region of Durham), Bird and placed on the need to assessthe cumulative

431 impact of various types of development provincially, and federally, ;:tSwell as amongst within the region. those levels, in concert with citizens and Development on the Durham water- appropriate private-sectorparties. This front has often been done piecemeal, under would ensure the necessarysupport and general direction of the local waterfront acceptanceof environmental imperatives, municipality. It was the Commission'sview, the adoption of principles and the imple- articulated in Watershed,(and with which mentation of guidelines. For example, the Durham concurred) that the Region co- region could work with local waterfront ordinate local waterfront plans in a regional municipalities to implement a greenway context. Although discussionshave been strategyas a tool to protect ecological undertaken, no significant stepstowards a integrity and the natural areaswhich exist regional waterfront plan have been achieved today. Inadequate alternativesinclude within the lastyear. piecing together remaining parcels of land Action is needed soon on the Region's after each development has been approved proposal to prepare a waterfront plan to or losing these areasto other usessuch as encompassall or part of Durham's Lake golf courses. Ontario waterfront, from Pickering to Ontario Hydro has indicated its Newcastle,in an amendment to the willingness to c<>-operatein ensuring safe Regional Official Plan. The Commission accessto the waterfront in areasnear the supports this initiative, which is to address Pickering and Darlington Nuclear Gener- earlier Watershedrecommendations, recrea- ating Stations in Durham and elsewhere tional opportunities, public access,wetland on their waterfront lands. conservation, and other issues. As noted in Chapter 3, the Province Development proposals have been has recognized the need to protect the submitted for extensive tracts of waterfront moraine. An expressionof Provincial Interest land in such areasas Ajax, Whitby, and was made recently, interim guidelines for Newcastle,while smaller-scaleprojects have planning decisionswere established,and a been proposed for Pickering. The Oshawa two-yearstu~y of long-term protective mea- Harbour Area is also the subject of discussion suresis scheduled to be completed in 1993. on revitalizing the port area and increasing The Durham Regional Plan recognizes public waterfront use while maintaining the Oak RidgesMoraine as a major natural the environmental integrity of the land. feature to be protected; a similar reference Durham needs to assumea leadership should be made to Durham's 62 kilometres role by offering planning that is environ- (39 miles) of Lake Ontario shoreline, mentally sound, and takesinto account the which is fairly developed in the west, but cumulative effects of economic activities and has expansesof relatively pristine waterfront community development on the natural land in the east, including bluffs that rise and built environments. as high as 20 metres (66 feet). Local municipalities also need to In addition, significant natural areas, have the tools to implement such an river valleys,and headwatersflowing south approach to planning at their level; further- from the moraine should be protected more, cO-Qperativeaction is needed locally, as part of the Greater Toronto bioregion,

432 Newcastleshoreline

including the Altona Forest in Pickering authority's ability to undertake these respon- and the GanaraskaRiver flowing through sibilities successfully,as well as the historic Newcastleand Port Hope into Lake Ontario. debate over the ownership of Frenchman's Bay, has limited involvement in waterfront TOWN OF PICKERING issuesby the Town and its residents. Pickering wasestablished in the early Debate about ownership of land under 1800sand the first town meeting washeld Frenchman's Bayand of part of the marsh- there in 1811. Population had escalatedto lands and the easternshore, began in 1791 approximately 8,000 by the mid-1800s,and when the Township deeded parts of the bay wasdouble that a century later. As recently to various people. By the mid-1800s,the as the 1950s,farming was still the major deeds had been purchased by the Pickering source of wealth within the township. With Harbour and RoadJoint Stock Company, the development of Highway 401, develop- which operated a busycommercial harbour ers began scouting the area for land with in the bay until the 1920s. residential promise and found it on the The baywas purchased by the waterfront. The most westerlywaterfront Pickering Harbour Company in 1965, but municipality in Durham, Pickering is home the argument has been made that, under to more than 50,000 people today. the 1914federal Beds of NavigableWaters Pickering has traditionally relied on the Act, ownership of all such bodies of water MTRCA to take the lead role in planning reverted to the Crown in the absenceof an and land acquisition for its eight kilometres expressfederal government grant or a legal (five miles) of shoreline. The conservation determination; becauseneither of those

433 wasmade when the Pickering Harbour and groups were needed to discussvisions, goals, Road Joint Stock Company owned the bay and objectivesfor the bay as a whole; this in 1914, the argument goes, the property should be done before any decisionswere reverted to the Crown at that time. made on which development proposals for The status of the ownership of the the area should be allowed to proceed. In bay and municipal control over land-use support of these conclusions, the report proposals is currently being considered by recommended that "a moratorium be the courts; therefore, plans related to these declared on developmentsin the Bayand lands and water bodies are dependent on its borderlands until a cO-Qrdinatedcon- resolving legal issues. servation and development (sustainable development) strategyis prepared". WATERSHED UPDATE In the past few years, development in In December 1990, Pickering the Frenchman's Bayarea has been chal- Town Council responded positively to the lenged: residentshave grouped together to Commission's report, and concurred wit4 speakagainst development, and the Town the ecosystemapproach and the nine princi- has begun to recognize that there is a lack ples. It also agreed with other recommenda- of comprehensivepolicies and direction on tions, such as the idea of a Waterfront Trail the cumulative effect of development on the from Burlington to Newcastle,and an imme- shoreline and the natural environment. diate review of the Ontario Trees Act. Responseto the June 1991 Frenchman's The Province of Ontario, responding Bay,Ontario: Conservation and Sustainable to an earlier Watershedrecommendation for Developmentreport includes general support a study of Frenchman's Bay -and recogniz- from key provincial agencies,the Town of ing that there are concerns about balancing Pickering, and the MTRCA. They haveagreed development and conservation in the area to put together terms of reference for the and that there is no integrated analysisof recommended sustainabledevelopment the problem -commissioned a report on strategy. the bay's capacityto support additional In the meantime, the conservation development. authority and the Town are exploring the The study,completed in June 1991 feasibility of acquiring land owned by by the Heritage ResourcesCentre (Nelson Sandbury Building Corporation in the north- et al.) at the University of Waterloo, con- eastend of Frenchman's Bay. Sandbury's cluded that many land-use and environmen- current development plans include 39 town- tal changeshave occurred in the bay area in homes on the tableland portion of the site, the last 35 years,and that many more will with public accesson floodplain lands occur in the future. It also noted that the betweenthe development and the bay. The land-usechanges have had an adverseimpact site is currently designated for low-density on the marshesand on other environmental residential use and would require rezoning qualities of the bayarea. if the project were to go ahead. The land at It also concluded that added research, the north end of the bay, currently owned communication, and co-ordination among by the Pickering Harbour Company,is also government agencies,citizen, and corporate subject to possible residential development

434 Frenchman'sBay in the future on a site that includes environ- Significant natural areasshould be protected mentally significant marshescreated by lake- and enhanced, including the waterfront, filling many yearsago. major waterways,and Frenchman's Bay, Decisions regarding future land uses while development proposals should be of the bay, including proposed develop- assessedto evaluatepossible environmental ment, should not be made until more is effects. known about its environmental state. TOWN OF AJAX LOCAL PLANNING The present site of the Town of Ajax

INITIATIVES was once rolling farmland on the edge of

In the near future, the Town of Lake Ontario in Pickering Township. Used

Pickering is likely to begin a comprehensive as an industrial site during the Second review of its 1981 District Plan; this is an World War, the Town was later named after important opportunity for the Town to revise a British warship, HMS Ajax, symbol of its plan and to take the ecosystemapproach it courage and determination. Ajax became a supported in its earlier responseto Watershed. post-war community; until 1950 it had no

The review should focus on establish- local government. It officially became a ing relationships among environmental, town in 1954, when the first Town Council economic, and community features that and Public School Board were elected; in would result in a healthier, more balanced 1974, Ajax was amalgamated to include ecosystemand improved quality of life. the former Town of Ajax, the Village of

435 Pickering, and portions of the Township of will mean a loss of existing green space Pickering -which increased its size from and will create a visual barrier to the water- lessthan 1214hectares (3,000 acres) to front." It wasrecommended that "creative more than 6475 hectares (16,000 acres). landscapingand building design should The combination of historic village homes, addressthese problems with a view to inte- peaceful township farms, and a modern grating the structure with the surrounding community make Ajax an interesting place residential neighbourhood." The Commis- in which to live, work, and play. sion continues to support this view, citing The town's population has grown from the Metropolitan Toronto's R. C. Harris more than 23,000 residents in 1979 to more Water Filtration Plant, the largest facility of than 50,000today, more than half of whom its kind, as a good example of an exquisitely live in the waterfront area. Much of the designed public building. Rather than being six kilometres (four an eye-soreon the miles) of Ajax shore- waterfront, the plant line -from Duffin The combination of historic is considered by many Creek eastto Lakeridge village homes,peaceful townshiP people to be architec- Road -are given over farms, and a modern community make turallyoutstanding; to expansesof open Ajax an interesting Place in which to its symmetry and space.This is the result live, work, and play. terraced lawns are of the Town's require- among its most ment of a 400-foot engagingfeatures. (122 metre) setbackin numerouslow-

436 Elsewherealong the Ajax waterfront, ecosystemapproach to the planning pro- residential development is likely to continue. cess,focusing on the existing natural Most notably, two parcels of waterfront land environment and on waysto protect and are available for development: a significant enhance important areas;moreover, this portion of lands owned by Runnymede can be done while still maintaining Development Corporation Limited, located preferred densities and developing an eco- at the eastend of Ajax including Carruther's nomically feasible project that is sensitiveto Creek Marsh, a ClassIII wetland; and a block more appropriate built forms and provides of land at the foot of Harwood Avenue, cur- public accessto the water's edge. rently owned by Hi-Rise Structures Limited. In considering the Runnymede Initial development proposals released property along the Ajax waterfront, the by Runnymede in June 1990 showedplans Commissionrecommended a strategy that for a 95-hectare (234-acre)waterfront com- would maintain and protect Carruther's munity, including a marina at the mouth of Creek; the transfer of the ClassIII wetland Carruther's Creek. Runnymede later volun- at the mouth of the creek to be managed by tarily withdrew its development plans for the a public agency; creation of a suitable, pub- Carruther's Creek site, and are currently in licly owned buffer to protect wetland; and the processof preparing new plans based acquisition of waterfront lands east of the on giving the environment priority. The creek by the Town of Ajax or MTRCA as a Commission and the Town of Ajax agree requirement of future development. The that this is a commendable process,an Commissioncontinues to support these example of how developerscan adopt an recommendations.

R.C HarrisWater Filtration Plant, Scarborough

437 Carru/her'sCreek, Ajax

East of Carruther's Creek and the in an environmentally sensitivemanner, and Regional Water Treatment Plant, is the would like to see the proposal modified to 3.7-hectare (nine-acre) parcel of land incorporate an ecosystemapproach similar owned 'by Hi-Rise Structures, adjacent to to that of Runnymede Development open spaceareas on the waterfront Corporation. Plans should be consistent Hi-Rise'sdevelopment plans call for with the existing open and accessiblechar- approximately 440 residential apartments in acter and scale of the Ajax waterfront. four 10-storeybuildings stepped back from The Town of Ajax should reconsider the shoreline and, in addition, other com- the appropriateness of designating the mercial and recreational buildings. The Hi-Rise lands as high'-densityresidential Official Plan and zoning designationsfor and of the marina requirement, taking into this site permit high-density residential account the issuesdiscussed in this report, and commercial uses,providing a marina is which would have to be addressedbefore developed. Hi-Rise has submitted a proposal the Province would approve a marina,and in keeping with the residential high density, other development on this site. but has asked that the marina obligation be dropped. Establishinga marina in this loca- LOCAL PLANNING tion would require comprehensiveenviron- I NITIA TIVES mental studies and a significant volume of Planning in the Town of Ajax is cur- either lakefilling or dredging. rently guided by the 1978 District Plan. The The Commission is of the opinion that plan, while requiring a 400-foot (122-metre) the current developmentplan is not designed setbackin developmentsalong the shoreline,

438 is not based on an environmental frame- the 1950s,Whitby was home to more than work. Instead, general environmental poli- 15,000people and now has quadruple that cies are contained in the Durham Regional number. By 2001, population is expected Official Plan and the policies of local to approach 100,000. conservation authorities. Today,the town's eight kilometres Ajax has relied heavily on MTRCA (five miles) of Lake Ontario shoreline stretch for waterfront land acquisition and mainte- roughly from Cranberry Marsh eastto nance; as a result of the setbackprovision Corbett Creek; watercoursesentering the for development along the shoreline, vast lake at Whitby include Lynde Creek, Pringle expansesof open spaceare maintained by Creek, and Corbett Creek. Among the most the conservation authority, primarily for important natural areas along the water- passiverecreational usessuch aswalking, front are Cranberry Marsh and the Lynde jogging or bicycling along the shoreline. Shores ConservationArea. There is an opportunity to use these spaces to provide green connectors between WATERSHED UPDATE natural environmental areas such as Duffin Over the pastyear, Coscan'sHarbour Creek and Carruther's Creek. However, Isle residential development in the Town of such corridors would have to be heavily veg- Whitby has been hotly debated becauseof etated, preferably with native plant associa- issuesincluding access,massing, height, and tions to create diversewildlife habitat. density. In Watershed,the Commission Ajax Council is still considering the recommended that continuous public Watershedreport, but Town staff generally accessto the Whitby Harbour waterfront be endorse the ecosystemapproach and the incorporated into the project's plans. The nine principles. Becausethe Town would following December 1990, the Province of benefit from implementing such an Ontario endorsed the waterfront trail and approach, they should reviewthe District the Commission'snine principles. Plan to incorporate the appropriate princi- The Town of Whitby later approved ples; the review should include a waterfront plans for the Coscanproject. which did not plan that is appropriate to the Town's conform to the recently endorsed policy. needs, incorporating: environmental pro- The provincial Ministry of Municipal Affairs tection of the shoreline, naturai areas,and indicated its intention of filing a zoning flowing into the lake; appropriate appeal with the Ontario Municipal Board, land uses on the waterfront; and greenway using the non-compliance as grounds. connectors within the Town and linking it The disagreementsbetween the Town to surrounding municipalities. of Whi tby and the Province of Ontario were eventuallyresolved to everyone'ssatisfac- TOWN OF WH IT BY tion. The then Mayor Bob Attersley noted In 1852 Whitby, which is adjacent to that, "through a tremendous effort of all and east of Ajax, took its name from the sea- parties concerned, we met a mutual agree- side town in Yorkshire, England. Officially ment. ...I am proud that the municipality, incorporated in 1855, it had a population of the [Province] and the Developerwere able almost 3,000 people shortly thereafter; by to mutually agree on this project."

439 The revised Harbour Isle development study,Development of Strategiesand options proposal has been amended to include a (M. M. Dillon et al. 1991). In the first and public walkwayaround the entire site, a second phasesbackground information was public parkette, an at-gradepublic walkway compiled and a policy reviewand assessment from Brock Street to the water's edge were begun; the last two phaseswill pro- allowing public accessthrough the project, pose and finalize a Draft Official Plan and and an overall reduction in the number of accompanyingpolicies. residential units from 791 to 734. The Town's development strategy The Lynde Shores SecondaryPlan endorsesthe ecosystemapproach, and will area, located just west of Whitby Harbour, focus on a number of elements including, has also been under much study in the past but not limited to: year. In 1990, consultantswere commissioned by landowners including the Region of .moving towards achieving sustainable Durham, the Province of Ontario (Ministry development through the adoption of of Government Services)and the private appropriat~ goals and policies; sector to undertake an environmental .adopting the principle of land management plan {EMP) for the area. stewardshipto protect land and water This comprehensive studyidentifies resourcesfrom the negative impact and documents environmentally sensitive of inappropriate use or premature and culturally significant areas,and assesses development; the potential impacts of development on the .adopting "bestmanagement" practices biophysical and cultural resourcesof within to manage,enhance, and conserve the Lynde Shores SecondaryPlan area. It Whitby's natural resources; also makesrecommendations for establish- .establishing linked parks and open- ing and managing these areasas major open spacesystems, primarily through spacelands. These lands are to be main- the Oak RidgesMoraine, the Lake tained or enhanced asdevelopment proceeds. Iroquois shoreline, the Lake Ontario This Environmental Management waterfront, and Heber Down Conser- Plan wasprepared to fulfil Ministry of the vation Area, and a systemof greenways Environment requirements to grant an comprising valleylands,parks, utility environment assessmentexemption to the corridors, and open-spacesystems; and Ministry of Government Serviceswhich, as .encouraging conservation and a Crown ministry involved in planning and protection of water bodies, fisheries, developing provincial lands, would normally wetlands,forest, and woodlots. undertake a full environmental assessment. The EMP is also a policy requirement of the The Commissionbelieves that the steps draft secondaryplan. taken by the Town of Whitby in revising their Official Plan mark substantialprogress PLANNING INITIATIVES and trusts that these will lead to comprehen- The Town of Whitby has undertaken a sivepolicies that strengthen continued eco- review of its 1974Official Plan and recently nomic growth and ensure maintenance of completed the third phase of a five-phase healthy urban and rural areasin the town.

440 CITY OF OS HAW A Ontario shoreline, stretching from Corbett The City of Oshawabegan as a Creek to McLaughlin Bay. Major local areas clearing in the forest wilderness on the of environmental importance and water- north shore of Lake Ontario, known from waysflowing into Lake Ontario include the the early until the mid-19th century as OshawaSecond Marsh, Pumphouse Marsh, Skae'sCorners. In 1849, when it became a and OshawaCreek. The OshawaHarbour separatemunicipality known as Oshawa,the Area is also a major component of the population was about 2,000. city's waterfront. Industrial progress began in 1876 OshawaHarbour Commissionlands when Robert Mclaughlin, a carriage builder, currently include the OshawaHarbour area moved to Oshawato begin the McLaughlin and the SecondMarsh; many people feel Carriage Company; beginning with this that the harbour area includes industrial uses small factory, businessprogressed and in that are unwanted next to a recreational 1918 the McLaughlin Carriage Company area, LakeviewPark, that is likely to be used wassold and merged with the Chevrolet increasingly in the future. Most cargo traffic Motor Car Company of Canada,to form is located on the eastside of the harbour, General Motors of CanadaLimited. Today, next to the environmentally sensitiveSecond the company has Canada's largestautomo- Marsh. The future role of the harbour area bile plant, located on the Oshawawaterfront. is currently being studied by the City. General Motors of Canada today is a Over the past decade,the port has waterfront-friendly industry, helping to undergone major changesin cargo mix and protect the OshawaSecond Marsh located users: in the early 1980s,St. Marys Cement adjacent to its corporate headquarters and relocated its high-volume coal shipments establishing the McLaughlin Bay Wildlife from the Oshawaport to its own private Reserve.Native vegetation is being planted facility in Newcastle.Since that time, its salt and trails are being created; the area will storage, regional distribution, and other soon be open to the public. The active pro- useshave also moved to the St. Marys tection of the marsh evolved over the past Cement dock. few decades,gaining support from govern- mentsand the private sector. In June 1991, WATERSHED UPDATE General Motors received the Pickering The Commissionrecommended Naturalists' ConservationAward for con- a review of the 1984Oshawa Harbour tinued efforts to design headquarters that Development Plan to better define the role would be compatible with protecting the of the port in light of potential alternate marsh -building height, glazing, and land uses.The Commission further recom- lighting were designed keeping in mind mended that, if it were decided that the migrating birds; moreover, the headquarters industrial/ commercial port function was development }3rotectsthe Second Marsh no longer warranted, the OshawaHarbour with a berm/ swalecomplex and silt ponds Commissionshould be disbanded and its to control run-off. lands transferred to the City of Oshawafor The Oshawawaterfront area comprises development based on an approved plan almost eight kilometres (five miles) of Lake that conforms to the nine principles.

441 GeneralMotors headquartersbuilding near the OshowaSecond Marsh

Since those recommendations were .a mix of indusuial and non-industrial made, the City of Oshawahas begun a com- usesis a viable shorter-term strategy prehensive planning study of the Southeast for servicing port indusuial func- Oshawaarea, including the OshawaHarbour, tions in the near future, recognizing the Second Marsh, and surroundi~g lands. that sustainabledevelopment The reviewis geographically divided into requires a balance of economic two areas:the OshawaHarbour area lands and environmental changes; and the balance of the land north and east .implementing the broader objectives of the harbour, including the SecondMarsh. for long-term use of the The harbour study for the port area, (which is still anticipated) would mean undertaken by Malone Given Parsonsfor moving current Oshawa port functions the City of Oshawa,examined the role and to an alternative harbour; economic viability of the existing port, to .the Port of Oshawacan continue to determine preferred future land usesfor operate in an economically viable the southeastOshawa Harbour area. They and self-sustainingway until a clear applied the ecosystemapproach outlined in alternative exists; Watershed,and considered port issuesin .a Waterfront Partnership Agreement, the context of the environmental condition consistentwith the Commission's of the lands, the port's economic future, Watershedrecommendations, would its local and regional roles, and issuesthat be the most appropriate way to would affect the community, including ensure that the government and pri- public accessand use of the waterfront. vate landownersco-operate in imple- The study's key conclusions are that: menting this (or an alternative) plan; and .a mix of cultural and recreational uses .the 1984Oshawa Harbour Develop- would be the most appropriate long- ment Plan and related studies range plan for the port; were over-ambitiousand cannot be

442 supportedby current or projected by establishingconsultations among various marketdemand. provincial ministries, the OshawaHarbour Commission, the Town of Newcastle,and The balance of the SoutheastOshawa the Region of Durham. lands Wereexamined in a study by City The City of Oshawa's1987 Waterfront of Oshawa staff. Existing land usesare Development Plan has been particularly primarily open spaceand industrial; the su~cessfulin providing guidance for estab- area includes the environmentally sensitive lishing and implementing a local trail Second Marsh and other significant natural systemthat will eventually link the city's open-spaceareas. The main issuesfor the downtown to its waterfront. SoutheastOshawa study area are the need Planning for the entire city is governed for long-term planning, soil contamination by its 1987 Official Plan. This plan should and other environmental constraints, and be revised with a view to incorporating the preservation and enhancement of natural ecosystemapproach, and protecting and areas,particularly the Second Marsh. enhancing the natural environment, while The SoutheastOshawa studies are promoting economic growth and community currently undergoing departmental, agency, development. and public review. Following this part of the process,the City of Oshawawill make recom- TOWN OF mendations on the future role and function NEWCASTLE of the Oshawa Harbour and appropriate The Town of Newcastle was established land-useconcepts. The region's economic when regional government was introduced objectivesinclude maintaining Oshawa in 1974; today, it encompasses three

Harbour asa commercial port facility until major urban areas: the villages of Newcastle, studieshave been completed. If these stud- Bowmanville, and Courtice. Of these, ies support transferring port activity from Newcastle and Bowmanville are located

Oshawato the St. Marys Cement dock facil- near Lake Ontario. ity in Newcastle,the region may reconsider In 1794 the first settlers to the Town of the role of OshawaHarbour. Newcastle arrived in Bowmanville (known as

An additional phase of the harbour Darlington Mills until the 1830s). The area study will entail land-useand design options was named after Charles Bowman, a Scots and implementation guidelines. It is the merchant from Montreal who bought the

Commission's view that the future role of local store and considerable amounts of the harbour area should be decided on in land in the town. Bowmanville was incorpo- an appropriate environmental context; in rated in 1853, and became a town in 1858. turn, successfullyimplementing the City's By 1878, it had a population of approxi- emerging plans will depend on its ability to mately 3,500; today, with more than bring all parties together at the earliest pos.. 14,000 residents, it is the largest urban area sible stage.Certainly, it is advantageousfor in Newcastle. the City to do so from the outset: discussing The Village of Newcastle, incorporated appropriate recommendations and agreeing in 1856, was founded in the mid-1800s by on waysto implement a preferred option people who wished to capitalize on its

443 location close to the , areaswithin Newcastle,portions of which which had been constructed from Toronto are to be developed in the short and long to Montreal between 1853 and 1856. term, as noted in the revised regional The railway brought businessto the village: Official Plan. brickyards, builders, and cabinetmakers, In recommendations related to the among them. Major fires in 1877, 1891,and Town of Newcastle,Watershed urged that 1896destroyed severalbuildings and many approvals for proposed residential, com- local businesses,not all of which were mercial, industrial, tourism or recreational rebuilt as the village struggled to revive projects on the Newcastleshoreline be sus- itself. In the 1960sit had a population of pended until a local waterfront plan is pre- more than 1,500,and it is estimated to pared for the entire waterfront, unless have 2,500 people today. such development proposals conform to The total population of the Town of the goals and objectives of such a plan Newcastleexcee<;is 45,000 and is expected to and to the Commission'snine principles. be more than 65,000 by 2001. With much of Since the recommendations were made, its waterfront undeveloped and its hinter- the Town has not approved any waterfront land a mix of urban and agricultural areas projects. (and some industrial uses),the Town has a A review of the NewcastleOfficial great opportunity to maintain much of its Plan was begun by staff and the first public current natural state. meeting on it washeld in September 1991. The Town of Newcastleencompasses The Commission supports the initiative to most of the Durham Shoreline, with more update the Town's planning policies and than 30 kilometres (19 miles) of waterfront, reshape them to conform with the regional most of it undeveloped, from McLaughlin plan, focusing on managing growth and Bay eastto Port Granby. Other substantial maintaining and improving the quality of portions of Newcastle'swaterfront lands are life. A comprehensive study of the town's taken up by Darlington Provincial Park, the waterfront area is also under way and a Darlington Nuclear Generating Station, study of the Bowmanville waterfront area St. Marys Cement, and the Wilmot Creek is being completed. Retirement Community. The Commission supports this approach which will help the Town guide WATERSHED UPDATE development of Newcastleand its water': Local Council first approved the front area in a way that is most beneficial Official Plan for the Township of Darlington to those placesand to the people in them. in 1960 (renamed, in 1985, the Town of It believesthat, in future, the Newcastle NewcastleOfficial Plan). This plan, approved waterfront could offer an exciting mix of in part by the Province of Ontario in 1986 natural and built environments, and a and 1987, currently includes policies for diversity of land uses that are sensitiveto ~e three major urban areas:environmental their natural surroundings and that range and commercial, industrial, and institu- from industrial to residential, mixed-use, tional. It does not include policies or land- and recreational, as well as natural and use designations for the waterfront or rural urban open spaces.

444 ST. MARYS CEMENT: INDUSTRY ON THE WATERFRONT

In 1912,a construction materials company, St. Marys Corporation, wasfounded in St. Marys,Ontario. Today, it is an important Canadian corporation, operating in Canada and the United States. Since the late 1960s,St. Maryshas run a quarry and cement plant on the Bowmanville waterfront in Newcastle. In 1973,the company waspermitted to extract materials on the site under the Pits and Quarries Control Act. The following year, St. Marys acquired a provincial waterlot to create docking and storagefacilities. In 1988,the plant produced approximately 500,000 tonnes (492,000 tons) of cement, about 8.5 per cent of the provincial total.

To remain internationally competitive, St. Marysplans to expand the capacityof the Bowmanville plant, at a cost of $160 million, so that it can produce from 2,000 to 5,000tonnes (1,968 to 4,920 tons) of cement per day; the company has askedthe Province to sell it a 32-hectare (80-acre) waterlot immediately westof the existing dock, so that it can enlarge its port facilities to accommodate two maximum-sized bulk carriers. Such facilities are important to enable the company to continue exporting to U.S. markets and they would also meet the bulk cargo needs of other Canadian companies. Furthermore, there is long-term potential for St. Marys to provide a deep-waterport at the dock. However, expanding St. Marys dock and quarry operations would affect wildlife habitat and the adjacent residential community. The company is aware of the value of the natural environment and intends to consider the site's natural attributes in planning future operations. For example, it proposes to compensate for the loss of relatively poor fish habitat, which would result from enlarging the dock, by creating an experimental lake trout spawningshoal in consultation with government and non-governmentwildlife experts. Similarly, consideration will be given to waysof maintaining wetland values if future quarry expansion affectsWestside Beach Marsh, a ClassII wetland on the St. Marys site. By carefully designing the proposed dock, the company hopes to minimize environmental effects; it will monitor the fish shoal and potential effectsof the new dock, including erosion and sediment movement. The concerns of nearby residentsinclude impaired vistas,dust, storm drainage, noise, and vibration from industrial operations, as well as shoreline erosion. St. Marys Cement is attempting to meet these by building landscaped berms, and by good housekeeping prac- tices that will reduce dust and noise. It has expressedits willingness to work with various government agenciesand the community at large to protect the environment while successfullyoperating an industry on the waterfront.

The Watershedreport alsonoted that, waterfrontin Newcastle,further detailed beforeany recommendationcould be made analysiswas needed. In 1989,St. Marys on future expansionof the St.Marys appliedto the Ministry of NaturalResources Cementdock facilities on the Bowmanville to acquirean additional (32-hectare)

445 80-acreLake Ontario waterlot that would Map12.1 Regionalgreenway concept, give it the spaceneeded to expand existing Durham dock facilities through lakefilling. At the present time, the Province is considering whether the proposed fill should be subject to an environmental assessment The recommended Greatc::rToronto bioregion shoreline regeneration plan (Chapter 4) will also help prepare a frame- work within which to guide the future of the Newcastlewaterfront area.

GREEN WAYS The Oak Ridges Moraine, as it reaches southeasttowards the Trent River, has been used as a northern boundary in describing the Greater Toronto bioregion. However, in Durham Region it becomesobvious that there is at least one additional bioregion which should also be considered: the one encompassingthe watershedsnorth and east of the moraine (including the green links between the three regional urban areas in Durham south of the Moraine), Among the keyareas in which there are up to Lake Simcoe and Lake Scugog(see opportunities to develop portions of a Dur- Map 12.1). ham greenwaysystem in the near future are: There is an opportunity for Durham's regional urban areasto be separatedby .publicly owned lands in the natural areas of vegetation, and providing Lynde Shoresarea, stretc~ing into wildlife habitat as well as connectors to a Cranberry Marsh and the Whitby regional greenway system,linking the major Psychiatric Hospital lands on the natural elements of the bioregion. Whitby waterfront To date, the Region of Durham .Oshawa waterfront lands surrounding has not been very involved in developing the Second Marsh, which could the Waterfront Trail endorsed by the include public accessfor educational Province, but it supports creation of a purposes;and greenwaysystem linking public access .those waterfront lands for which there on the waterfront to the river valleysand are development proposals,because enhancing natural features in the major they offer opportunities for acquiring open-spacesystem, working with local public rights of way.The Town of municipalities and other appropriate Newcastlehas the most potential in this respect. . agenciesto reach these goals.

446 RECOMMENDATIONS 81. The Pro~nce of Ontario should negotiate one or more Waterfront 79. The Royal Commission recommends Partnership Agreementswith the that Durham Region, itS local munici- Regional Municipality of Durham, palities, MTRCA, CLOCA and GRCA local municipalities, other levels of continue to review relevant documentS government and their agencies,and including official plans, secondary appropriate private-sectorbodies, to plans and other waterfront-specific managefuture waterfront acti~ty. plans to ensure that they incorporate While different municipalities are the ecosystemapproach and the nine at different stagesof waterfront plan- principles described in Part I. ning, the Waterfront Partnership The review should include, but Agreementsshould be closelylinked not be limited to: to preparation and implementation of the regional waterfront plan, and .a regional waterfront plan should include: encompassingall of Durham's Lake Ontario shoreline; .clear identification of the roles .a review of the Pickering District and responsibilities of various Plan; and agenciesin implementing water- .a review of the Ajax District Plan front plans in Durham, with the and preparation of an Ajax Region taking the co-ordinating waterfront plan. role; .a review of the design of Prior to establishinga compre- proposed regional water supply hensive Durham waterfront plan, and se~agefacility plans along waterfront projectsshould be approved the waterfront, to ensure that only if proponents show that the they do not detract from other development is consistent with the waterfront objectives; ecosystemapproach, the nine princi- .strategies to protect and main- ples in Part I and recommendations tain significant natural habitats in Part II. including: -Frenchman's Baymarshes; 80. The Commission further recommends -Carruther's Creek mouth; that Durham Region, the towns of -Lynde Creek mouth; Pickering, Ajax, Whitby, and Newcastle, -Pumphouse Marsh; the City of Oshawa,MTRCA, CLOCA -Oshawa Second Marsh; and GRCA participate in preparing -McLaughlin Bay; the proposed shoreline regeneration -Wilmot Creek mouth; and plan, including a waterfront greenway -Bond Head Bluffs; and trail, and ensure that any other .endorsement and implementa- plans for waterfront areasare reviewed tion of the recommendations and/ or developed in this context. made for Frenchman's Bay, in

447 its Conservationand Sustainable Developmentreport, after consul- tation with the public and with such appropriate agenciesas the EAST OF DURHAM Town of Pickering, the Region of As noted in chapter 1, the Watershed Durham, MTRCA and the report focussedon the waterfront of the Province of Ontario; . However, with a .a regional greenwayand trail broader understanding of the ecological fea- strategyconsistent with recom- tures of the bioregion we now venture east mendations in Chapter 5. This of Durham to the Trent River. The Towns of regional greenwayand trail Port Hope, Cobourg, Colborne, Brighton systemshould extend from the and Trenton are located along Lake Ontario Oak Ridges Moraine south to in the County of Northumberland. To Lake Ontario and north to Lake date, the Commissionhas been in contact Simcoe and Lake Scugog. with the towns of Cobourg and Port Hope, The natural areasbetween and includes comments specific to these the three regional urban nodes - areashere. Pickering/Ajax, Whitby/ Oshawa/ Courtice, and Bowmanville/ TOWN OF PORT HOPE Newcastle-should be re-estab- Port Hope is located at the point lished and kept in a natural where the Ganaraska River meets state (seeMap 12.1); Lake Ontario. In 1793, the first 27 settlers .transfer of the ClassIII wetland arrived in what was originally named Smith's at the mouth of Carruther's Creek, and was later renamed Port Hope, Creek and a suitable buffer, to a in honour of Colonel Henry Hope, a lieu- public agencyto be managed as tenant governor of the colony. By 1834, the a protected wetland; and acquisi- town's population had grown to 1,517and, tion of waterfront lands eastof by the mid-1900s,it had reached 6,327. Cur- the creek by the Town of Ajax or rently, Port Hope has a population of about MTRCA, prior to future develop- 11,830people, which is expected to increase ment; and by about 36 per cent over the next decade. .options and implementation The GanaraskaRiver contributed sig- strategiesfor the future of the nificantly to the economic development OshawaHarbour area; this of Port Hope: historically, it provided the processshould include infor- power for sawand grist mills and clean mtion on soil and groundwater water used by distilleries, making Port Hope contamination, appropriate a thriving centre of industry and trading clean-up standardsfor proposed until the beginning of the 20th century, future land uses,alternative when competition from larger centres remediation techniques, and became increasinglyfierce. cost/benefit analysesof the Today,the GanaraskaRiver, which options. flows to Port Hope southeastfrom the

448 EARLY ECOSYSTEM PLANNING: THE GANARASKA WATERSHED

Although conceptslike the ecosystemapproach, watershed planning, and quality of life may seemto be new additions to our mental maps, they have existed and been applied for many decades.The 1944Ganaraska Watershed report is an early and exciting example of their use; while terminology has changed in the yearssince then, many ideas and go~s remain unchanged. In 1941,citizens concerned about the environmental health of Canada,and of Ontario in particular, met at what later became known asthe Guelph Conference to formulate a conservation program and lobby government. The Dominion and Ontario governments responded by agreeing to collaborate in a surveyof the Ganaraskawatershed and to publish a follow-up report. But another 48 yearspassed before the two governments actually established a joint inquiry including land-use matters: this Royal Commission on the Future of the Toronto Waterfront. One of the most significant innovations of the original Ganaraskastudy -the use of natural boundaries, rather than political boundaries, to determine land-use planning borders -has been used by the Royal Commission. The Ganaraskawas chosenas an example of conservation study for all of Canada. Among the most significant environmental matters of the time were related issuesof erosion and flooding; toxic pollution, urban sprawl,and atmospheric change still lay in the future. Instead, terrible years of drought had alerted people to the vulnerability of Canada's soils. Photographs show the desert-like northern reachesof the Ganaraska watershed, with its sand dunes and washed-outgullies. While those who carried out the Ganaraskastudy in the 1940sdid not use the term "ecosystemapproach" (it had yet to be coined), that they understood its value is evident in even a single paragraph of their report:

Natural resources form a delicately balanced systemin which all the parts are inter- dependent, and they cannot be handled piece-meal.The present situation requires the co-ordination of existing relevant knowledge and its amplification where neces- sary, and then the development of a comprehensive plan for treating the natural resources on a wide public basis. The study's first stepwas to connect existing environmental problems with historical land-use patterns in order to gain a better understanding of the nature and extent of problems.. In the early 19th century, lumber wasGanaraska's main industry: between 1793 and 1861,38 sawmills operated in the region. Agriculture spread in the wake of the felling of forests. Together, these two land useshelped create erosion and flooding prob- lems in the Ganaraskawatershed. Without tree roots to bind the soil, and trees to soften the impact of falling rain, soils were easilywashed away. And without tree roots to trap moisture, rain or sudden snow melts led to torrential floods, resulting in heavyproperty damage and occasional loss of life. Following a surveyof the climate, soils, farms, natural areas,vegetation, wildlife, areassuffering from erosion, and land uses (similar to today's "state of the environment"

449 reports), recommendations were made to rehabilitate the watershed. They included reforestation of approximately 8,100 hectares (20,000 acres) -particularly of the delicate soils of the Oak Ridges Moraine -water retention ponds, improved agricultural practices (which included a recommendation that fragile soils be taken out of production), and the creation of severalrecreational centres. With the end of World War n in sight, the report's authors sawthese remedial measuresas providing important job creation opportunities for returning soldiers. The report also called for provincial legislation that would combine the best features of two existing conservation programs "so that conservation projects on needy areasmay be initiated immediately after the necessarylocal requirements of the Act are compiled with the municipalities concerned." Two years later, in 1946,the Ontario government responded and passedthe ConservationAuthorities Act.

Source: Richardson, A. H. 1944. A report on the Ganaraskawaiel:shed: a studyin land use with plansfor the rekabilitation of thearea in thepost-war period. Toronto: Ontario. Dept. of Planning and Development.

Thedesert-like northern reachesof the GonoroskoWatershed, circa 1940s

Oak Ridges Moraine in Newcastle,is an the CavenStreet Erosion Control Project important recreational resource, home This involved lining the river banks with to thousands of rainbow trout and other armourstone to prevent erosion. species.Fishers come to the Ganaraskato The waterfront area west of the participate in an annual salmon hunt or Ganaraskais occupied by a beach parkette other fishing events. and by the Eldorado/Cameco uranium Portions of the lower Ganaraska refinery. The latter industrial site is char- River are subject to erosion and severe acterized by noise, odours, and contami- annual flooding. Therefore, Port Hope has nated soils, discouraging public use of the constructed concrete and stone channels to lakefront and commercial, residential, and hold flood watersand has recently completed other land usesin the vicinity.

450 East of the GanaraskaRiver are a In February 1991, the Town of Port sewagetreatment plant and the Escoindus- Hope released Town ojPort Hope: Waterfront trial area, which include~ an abandoned MasterPlanning Study,which emphasizesthe paint factory. Most of the remaining land need to enhance tourism and recreation, along the easternshoreline is publicly owned, and recommends that planning policies providing recreational opportunities for be altered to ensure that the Town's water- fishing, hiking, boating, and swimming. front areasbecome a focus for public use. Clear accessroutes leading to and connect- According to the masterplan, policies of ing waterfront areasare limited and are cur- the Port Hope Official Plan should ensure rently being considered by the Town. that environmentally sensitiveareas are pro- The Port Hope Harbour at the mouth tected, diverseland usesco-exist along the of the GanaraskaRiver is a spawningground river and lakefronts, and that public access in spring and fall for a number of fish species, and recreational opportunities on the including brown trout, rainbow trout, lake waterfront are improved. These goals are trout, .andPacific salmon. Unfortunately, supported by the Commissionas they are harbour waters and sedimentsare contami- in accordancewith the nine principles for nated by radionuclides from former radium waterfront regeneration. and uranium refining operations, as well as In responseto the waterfront study, by high levels of phosphorus, nitrates, and the Town of Port Hope council approved metals. The levels of many of the contami- formation of the Port Hope Waterfront nants exceed the Guidelines for Open Implementation Committee which is now Disposal of Dredged Materials set by the involved in its first project, construction of a Canada-U.S. Water Quality new harbour on the eastside of the mouth Agreement. At present, the harbour is the of the Ganaraska.The purpose is to improve focus of a Remedial Action Plan (RAP). the Town's economyand enable Port Hope's East of Port Hope Harbour is Gage citizens to reclaim the waterfront asa people Creek, which also flows from the Oak place; the new facilities might also attract RidgesMoraine. There is a wetland area at more tourists to Port Hope, increasing the its mouth that contains marsh vegetation Town's revenue and generating newjobs. including wetland tree species.Tests of the A lakefront park and a public marina creek and nearby areasindicate poor water with facilities that include a restaurant are quality with high levels of nutrients and bac- planned for the new harbour. The town teria, as well as maximum summer tempera- proposesto use lakefill in some places to tures that are too high for rainbow trout. provide areasfor onshore marina facilities; Conceptual plans have been prepared planning for the Port Hope waterfront for remediating Gage Creek and other should be guided by the shoreline regenera- contaminated sites in the Port Hope area. tion plan described earlier in this report. The federal government will selectand A GreenwaysSubcommittee was prepare a storage site for contaminated formed by the Town to co-ordinate the materials, a process that could be completed planning and development of walkwaysand within five years,and clean-up will begin paths along the lakefront, GageCreek, and after this time. the GanaraskaRiver. It has fully endorsed

451 the waterfront trail concept described in products were exported. A century later, Watershedand in the provincial report, after World War II, industry expanded The Waterfront Trail: First Stepsfrom Conceptto and Cobourg became the home of several Reality (Reid et al. 1991). Members of the leading international companies in subcommittee are currently engaged in Canada, including General Foods and rehabilitating the Gage Creek Wetland Curtis Products. However,commerce in area in order to restore its natural elements the harbour had declined by the 1950sand (marsh, waterfowl nesting areas) and to development plans for alternative usesof develop trails linked to the proposed the land have since been proposed. waterfront network. Among concerns about the present condition of the Cobourg Harbour area is TOWN OF COBOURG the presence of.contaminated soil on indus- Originally named Amherst, the trial sites in the harbour lands, most of Town of Cobourg wasfounded in 1798 which is attributed to oil and gasspillage and renamed to honour the marriage of from storage tanks. The Town of Cobourg PrincessCharlotte to Prince Leopold of recognizesthe need to develop and enhance Saxe-Cobourg.By the 1830s,the community the harbour area so that it becomesmore had establisheditself asa regional centre with accessible,usable, and attractive for residents a population of about 1,000; by the middle and tourists. of this century, population had increased In late 1990, the mayor of Cobourg to 7,818. Today it is home to more than asked Town staff to review Watershedwith 15,000people, which is expected to increase a view to adapting and applying its recom- by about 20 per cent in the next decade. mendations to the Cobourg waterfront area. Cobourg has a number of public The staff report, which endorsed the rele- buildings of architectural and/or historical vant Watershedrecommendations, found that significance: Victoria Hall, also known as some recommendations could have implica- the Town Hall, wascompleted in 1860 and tions for the town's future, while others remains an impressiveexample of mid- could be adopted by policy documents Victorian architecture, embellished with or implemented through departmental pro- detailed carvings. The Hall is the home of grams. For example, an ecosystem-based the Northumberland Art Gallery and the policy to deal with waterfront issuescould Victoria Hall Concert Hall. Cobourg's Old be included in the Official Plan, as could Victoria College, established in 1836,also a policy for a waterfront trail. The staff has historical resonance: its first president report has been approved by council and wasReverend Egerton Ryerson,an educator stepsare being taken to incorporate specific who attracted many visitors, including actors Watershedrecommendations into the and musicians, to the college, and who went Town's planning. on to establishOntario's school system. A Harbour Area SecondaryPlan Construction of a harbour in the (1989) has been approved by the Town 1840son Cobourg's beach stimulated the of Cobourg and by the Province of Ontario. town's growth and the harbour soon became It will guide development of the harbour a busy port from which iron ore and other area, based on principles of accessibilityand

452 attractivenessto residentsand tourists. The Colborne, Brighton and Trenton, plan also notes that development should the County of Northumberland, the support the downtown, physicallyand com- GanaraskaRegion Conservation mercially, and should maintain the town's Authority and the Lower Trent Region existing scaleand character. Proposed Conservation Authority participate improvements include creation of parkland, in preparing the proposed shoreline promenades, pathways,and a plaza; expan- regeneration plan (Chapter 4), sion of marina facilities; and development including a waterfront greenway of mixed land uses. and trail, and ensure that any other The Town of Cobourg will have oppor- plans for waterfront areasare reviewed tunities to improve its harbour area and and/ or developed in this context. waterfront in the short and long term. The Commission believes that future develop- ment should be guided by comprehensive policies that deal with issuesincluding, but not limited to, environmental protection, shoreline regeneration, appropriate land- use designations,and incorporation of public access. There is an opportunity for Northumberland County and its mem- ber municipalities, especiallythe towns along Lake Ontario, to participate in future studies on the Greater Toronto bioregion.

RECOMMENDATIONS

82. The Royal Commission recom- mends that the towns of Port Hope and Cobourg, the County of Northumberland and the Ganaraska Region Conservation Authority continue to review relevant documents including official plans, secondary plans, and other waterfront-specific plans to ensure that they incorporate the ecosystemapproach and the nine waterfront principles described in Part I. 83. The Commission further recommends that the towns of Port Hope, Cobourg,

453