PART III: PLACES

This part of the final report of the the importance place has in the ordinary, Royal Commission is an appreciation of day-to-dayexperiences of people. the waterfront as a place and as a series of We all react to the placeswhere we places.Moving acrossthe bioregion, from live and work, in wayswe scarcelynotice Burlington Bay in the westto the Trent or that are only now becoming known River in the east, it offers comments about to us. Ever-acceleratingchanges inmost the Commission's experience of the diverse people's day-to-daycircumstances are places on the waterfront. helping us, prodding us, sometimes While those who live, work, and play forcing us, to learn that our ordinary in these places probably have a deeper surroundings, built and natural alike, appreciation of their attributes, in this sec- have an incredible and continuing tion the Commission attempts to define the effect on the way we feel and act, and public valuesand objectives for each place on our health and intelligence. These along the waterfront, as placeshave an impact well as recommending on our senseof our- strategiesfor the future. The kinds of places we create self, our senseof The kinds of and evolve tell us who we are safety,the kind of work placeswe create and and what is important to us. we get done, the evolve-the buildings () wayswe interact with we allow to be built; the other people, even way we treat our rivers, roads, wastes,trees, our ability to function as citizens in a and water; the care and attention we pay to democracy.In short, the place where we our offices, schools,factories, restaurants, spend our time affectsthe people we recreational facilities, monuments, and are and can become. places of worship -measure who we are As placesaround us change - and what is important to us. both the communities that shelter us In his excellent book, TheExperience of and the larger regions that support Place(1990), author Tony Hiss captures them -we all undergo changesinside.

261 Toronto,cityview in the evening

This means that whateverwe experience remote at all. It's enveloping, almost a in a place is both a serious environmen- continuum with all we seeand think. tal issueand a deeply personal one. And the danger we are now beginning Our relationship with the placeswe to seeis that wheneverwe make know and meet up with -where you changesin our surroundings, we can are right now; and where you've been all too easilyshort-change ourselves earlier today; and wherever you'll be in by cutting ourselvesoff from some of another few hours -is a close bond, the sights, or sounds, the shapesor intricate in nature, and not abstract, not textures or other information from a

262 Most and LeastDesired Types of the senseswhen walking down York Street WaterfrontDevelopment under the rail viaduct and the Gardiner acrossLake Shore Boulevard, past the low-riseapartments parking lots to reach the water's edge; fight the down-draft winds hurling down the low-riseoffice sidesand around the corners of the buildings new high-rises along Toronto's Central High-riseapartments Waterfront on a windy day; find an historic vista acrossthe bay, one that has brightened High-riseoffice the daily lives of many, but is now being buildings appropriated for the benefit of a few Nonew development hundred -these experiencesremind us Mostlike to see leasllike 10see that we need to safeguard,repair, and enrich the places our heritage has lent to Whenasked to considerdifferent developmentoptions for us so that we can enjoy them before we the woterfront,respondents favoured low riseover high passthem on to others. risedevelopment. Many of the placessurveyed here are Source:Environics Poll. 1991 in transition: sometimesthat transition is measuredand gentle, while nonetheless place that have helped mold our under- important, while in others, change is funda- standing and are now necessaryforus mental and magnificent in its impact. In to thrive. all of these places,we have the opportunity When people speak about vivid experi- not to "short-change" either our heritage ences of place, they are often referring or our future. to fond memories or magical moments; the waterfront offers many of these. Stand at the foot of Grindstone Creek and seethe denselytreed slopesrise steeplyon either side of the water; glance acrossHumber Bay from the easternshore of Etobicoke and see the distant gleaming towers of down- town Toronto shining in the sun; watch children play in Ajax's Rotary Park with the rushes and shrubs of Duffin Creek in the background; walk on Scarborough'sbluffs and look out over the lake -these are experiences to savourand remember for a lifetime. Sometimes,however, people's most unforgettable experiencesare of places that have been damaged and diminished over time. Absorb and survive the assaulton all

263 42%

CHAPTER 7: HALTON

The Halton waterfront comprises some 33 kilometres (20 miles) of Lake Ontario shoreline, and 5 kilometres(3 miles) along Burlington Bay/Hamilton Harbour. The regional waterfront includes the local waterfronts of Oakville and Burlington and stretches from Joshua Creek westto Grindstone Creek, where the waterfront meetsthe Niagara Escarpment. A significant number of watercoursesenter the lake to find a way to the southern sea.His party through deeply incised valleys,the most reached Burlington Bay and, after landing prominent being Bronte Creek (Twelve at what is now the park site, continued Mile Creek) and Sixteen Mile Creek, both inland to the SenecaIndian hamlet of in Oakville. Tinaouataoua, near present-dayWestover, The waterfront area was the first to be before returning to Montreal. It was only settled, both in Oakville and in Burlington. 13 years later that La Salle completed explo- Consequently,the area has more historical ration of the MississippiRiver and reached diversity in the age of its buildings and built its mouth. forms and in the maturity of vegetation than St. Luke's Church in Burlington, built can be found in more inland areas. in 1834, still retains its unbroken view of Across Burlington Bay, the stark Stelco Lake Ontario from the main south door. For and Dofasco steelworksin Hamilton contrast almost 160 years,this narrow strip of tree- with waterfront residential estates,golf lined lawn -20 metres by 160 metres (66 course lands, and the lush greenery of by 525 feet), extending from the lake to the Burlington side. La Salle Park on the Ontario Street, and originally without streets Burlington waterfront, but owned by the crossingit -has been known as Church City of Hamilton, is named after the French Avenue. This green lane provides a visual explorer who set out from Montreal in 1669 connection to the lake and is part of the

265 In October 1990 the City of Burlington purchasedthe 5.6-hectare(l4.acre) McNichol estate at the mouth of ShoreacresCreek. The City will preserve the McNichol house, dating back to the 1930's,and will retain the eight-acre creek valley in its natural state. Plans for the approximately 2.4 hectares (6 acres) of tableland overlooking Lake Ontario have not yet been made. The Town of Oakville also offers a variety of waterfront vistas. On the eastern part of the Oakville waterfront, Gairloch Gardens stretch from Lakeshore Road south to the lake. The gardens area highly mani- cured formal park with rose beds, decorative landscaping, flagstone walkways,and an armourstone shoreline. The land was bequeathed byJames Gairdner to the Town of Oakville in 1971 so that the public could enjoy the beautifullakefront setting at the mouth of Morrison Creek, where numerous St.Luke's Church, Burlington ducks and geesemake their home. The existing stucco dwelling has been converted property given to the Church of England by to a gallery and artists' studio operated by Joseph Brant, chief of the Six Nations. the Oakville Art Gallery. This park is a Spencer Smith Park, gently sloping to favourite for wedding photos which, because the lake, presentsan inviting vista of Lake of demand during the spring and summer, Ontario and the Niagara Peninsula. On a have to be scheduled months ahead. clear day, the CN Tower is visible in the east. In western Oakville, the Lakeshore The view of the lake, from the lower end of Road bridge over Bronte Creek offers a Brant Street, is an invitation to take a break number of views: looking toward the lake, from work and to contemplate the magic of you can seethe inner harbour, the river- land meeting open water. A children's play mouth, and the new Bronte Outer Harbour. area, recently added at the westernedge Beyond the breakwalls of the outer har- of the park awayfrom the water's edge, bour, which is nearing completion, is Lake enables parents to enjoy the waterfront Ontario. Connecting the two harbours is viewwhile youngstersare busy. a public boardwalk along .the edge of the The extreme western end of Spencer river, extending along the lake frontage. Smith Park is the former site of the Brant Upstream from the Bronte bridge is a laI:ge Inn which; from 1920 to the mid-1960s, lagoon and cattail marsh; anew eight-storey hosted the big jazz and swing bands, and condominium building wraps partially sawthe beginnings of rock and roll. around the easternedge of the marsh

266 before the marsh merges with the heavily averagehousehold income of any region's vegetatedslopes of the creek valley. waterfront in the Greater Toronto Area, the In contrast to other parts of Lake highest proportion of residentsengaged in Ontario in the Greater Toronto region, managerial and professional occupations, the Halton waterfront has no overwhelming and a pattern of dispersed housing and environmental problems. However, the employment that makespeople strongly adjoining Hamilton Harbour has been iden- dependent on automobiles. The region's tified by the Internationaljoint Commission waterfront area also has below-average (ljC) as one of 42 Areas of Concern in the housing opportunities for households of Great Lakes. Significant progresshas been moderate and lower income. made on the Hamilton Harbour Remedial Employment opportunities are Action Plan (RAP), and improvements to concentrated at the edges of the Halton water quality in Hamilton Harbour have waterfront, with heavyindustry on the west- resulted from actions by the responsible ern Hamilton side and the high-growth ser- parties, principally the steelcompanies and vice and office sectorsin Mississaugaand sewagetreatment plant operators. Metro Toronto, on the eastern side of The dominant image of the Halton Halton. The two edgesare connected by waterfront, encompassingboth the the Queen Elizabeth Way,the Lakeshore Burlington and the Oakville waterfront GO Transit commuter route, and the areas,is one of suburban, maturing resi- CN Rail line. Adjacent to the transportation dential communities. It has the highest corridor is a growingband of mixed industrial

TheMcNichol Estote at the mouth of ShoreacresCreek, purchased by the City of Burlington, 1990

267 and commercial buildings, the most signifi- 1981 and 1986, its waterfront-area popula- cant of which is still the Ford assemblyplant tion actuallydeclined by three per cent to in Oakville, built in 1953. 43,500persons, as household sizedecreased. The limited number of waterfront In fact, this area has the lowest proportion industrial uses,such as the Shell oil refinery of children and the highest proportion and testtrack, are gradually being displaced of seniors on the Greater Toronto region by more intensive residential development. waterfront. Housing ownership is increasing The extensive environmental clean-up in this area, which is likely to continue to required prior to redevelopment of the accommodateresidential development once Shell lands is nearing completion. the economy improves. Almost 1,500 units

Onthe Burlingtonwaterfront

Residential estates,with large formal of medium or high density housing are grounds, form a significant portion of the either approved or in process. lakefront uses south of Lakeshore Road. As part of its Official Plan review, the Development north of Lakeshore Road is City of Burlington commissioned a Gallup also predominantly suburban residential Community Attitude Survey; it found that with newer developmentsfurther inland. 78 per cent of City residents saythere is a Almost 37 per cent of Burlington's need to provide a wider range of housing population live in waterfront commu- prices throughout the City. A further nities. While the population of the City of 61 per cent want more land used for multi- Burlington increased marginally between ple unit housing and smaller homes in new

268 development areas.While not specific to of government and their agencies.The pur- waterfront areas,these results show general pose of these recommendations wasto cre- support for a broader mix of household ate a more open and accessiblewaterfront, incomes and diversity of housing types in as well as stronger connections with the new waterfront residential developments. creeks and river valley systems. The Oakville waterfront, with a popu- Subsequently,the Region of lation of nearly 30,000,has approximately Halton, the Halton Region Conservation 34 per cent of the Town' s population. This Authority, the Town of Oakville, the City waterfront area has the highest concentra- of Burlington, and Ontario Hydro, acting tion of single detached homes, the highest independently, have endorsed the Watershed proportion of residents in managerial and recommendations. professionaljobs, and the highest average While no Provincial Interest was household incomes on the Greater Toronto declared, the Province has endorsed the region waterfront. principle of Waterfront Partnership Agree- As might be expected, the Oakville ments. The region and local municipalities waterfront has a low proportion of residents have begun to respond to some of the with housing affordability problems and issuesidentified as a basisfor negotiations, a low incidence of overcrowded dwelling including: units. There is a low proportion of young adults (aged 20 to 34) on the Oakville water- .reviewing the (1982) Halton front probably becauseof the limited oppor- Waterfront Plan's conformity to the tunities for those people who need rental nine waterfront principles, as part of or affordable housing. the Halton Region Official Plan Review; The Oakville waterfront area also has .helping identify interim and preferred the highest proportion of GO Transit use waterfront trail routes in the provin- (13 percent of work trips) of any local water- cially initiated waterfront trail study; front area in the Greater Toronto region. .identifying opportunities to maintain This reflects the proximity of the Lakeshore and create green corridors asdescribed GO train route and the high proportion of in the 1990 planning document, A residentsworking in Metro Toronto. GreenlandsStrategy fur Halton,with strengthened policies to be included WATERSHED UPDATE in the Halton Official Plan Review; In its 1990 Watershedreport, the Royal .preparing to add, as part of the Commission made two recommendations Burlington Official Plan Review,a regarding the Halton waterfront. First, as Council-approved policy requiring requested by Halton Region, Burlington, that the water's edge to be dedicated and Oakville,it urged the Province to for public use whenever redevelop- declare a Provincial Interest in the Halton ment takesplace; and waterfront. Second, the Commissionrecom- .reconsidering the Region of Halton's mended that the Province negotiate a residential designation of 4.2 hectares Waterfront Partnership Agreement with the (10.3 acres) of waterfront, known as Region of Halton, as well as with other levels the Shell House lands, prior to

269 approving the 511 hectare (1,263 acre) grounds, and strategic .location of the Royal Burloak SecondaryPlan. Botanical Gardens (RBG) offer an immense re~ource.The gardens front on Cootes TOWARDS A '__~LN HE Paradiseand Grindstone Creek, and the The Waterfront Trail should be a RBG is prepared to participate in developing major pedestrian and bicycle link in an inte- an integrated trail systemfor the area. The grated greenwaysystem. (See Chapter 5 on objective would be to connect five basic Greenwaysfor further information.) The elements: the RBG lands, the Grindstone Burlington waterfront encompassesboth Creek valley,the Niagara Escarpment,.the Lake Ontario and Burlington Bayportions environmentally sensitiveCootes Paradise of the Waterfront Trail. One of the funda- wetlands,and the westernedge of Burlington mental trail planning questions in this area Bay.This would greatly enhance public is how to ensure greenwayconnections to accessand use, while maintaining the the Hamilton waterfront, to the Niagara environmental integrity of each of these Escarpmentand to the existing Bruce Trail. significant natural areas. Map 7.1 showspart of the Burlington On the Lake Ontario side, the three- Bay waterfront greenwayand trail. In this kilometre (two-mile) long Burlington context, the existing trails, landscaped Waterfront Park, from the Spencer Smith

Map7. Thewaterfront trail, Burlington

270 Park headland to the Hamilton Harbour opportunity to strengthen the Hamilton canal, is publicly owned. This continuous Beachcommunity. park is the result of long-term co-operation According to the 1991 provincial among the Halton Region Conservation study, TheWaterfront Trail: First Stepsfrom Authority, the City of Burlington, the region, Conceptto Reality(Reid et al.), only about and the Province of Ontario. In the summer eight per cent of Burlington's shoreline has of 1991 a bike trail was established on the an existing waterfront trail located on the former CN Rail bed adjoining the BeachStrip. optimal route. In contrast, about 20 per Burlington opened the cent of Oakville's Beach Strip proper to -waterfront has an full public use, includ- One of the goals in Burlington is to existing trail along ing supervisedswim- connectfive areas of natural significance, the optimal route - ming and beach greatly enhancingpublic accessand use outside of Metro programs, and general while maintaining the environmental Toronto, the highest recreation. During the integrity of each natural site. proportion of any summer, approximately local municipality in 24,500 personsused the Greater Toronto the park. The beachwas "posted»as unsafe region. Local waterfront planning policies for swimming on 12 daysbecause of poor make the difference: while Oakville requires water quality; but wasnevertheless open for that a IS-metre (50-foot) strip be dedicated swimming 82 percent of time. to the town when waterfront redevelopment The Breezewaylink, which would takesplace, the City of Burlington has no connect Hamilton's Confederation Park such requirement. to the Burlington Beachwaterfront, was In March 1990, the Region of Halton, proposed in the 1987 Hamilton Beach in concert with its local municipalities Concept Plan and approved by both the and conservation authorities, submitted City of Hamilton and the Hamilton Region A GreenlandsStrategy for Halton to then-MPP ConservationAuthority. However, the more Ron Kanter's (1990) study, spacefor All: recent draft Hamilton BeachNeighbourhood optionsfor a GreaterToronto A~ea Greenlands Plan (1991) proposeslocal modifications to Strategy.In general, that document takes a the original plan and, in its current state, watershedapproach, recognizing the inter- appearsto reduce both p~blic waterfront connections betweenthe Niagara Escarp- accessand local and regional waterfront ment, .the river valleys,and the waterfront. recreational potential. In particular, the Although short on specifics,Halton's Breezewaylink appearsto have been submissionclearly acknowledgesthe removed and more restrictive accessto the multiple roles that green spacecan play waterfront proposed. Clearly, there is a need ina regional framework. The Halton to reconcile local and regional waterfront Greenlands Strategyobjectives include: uses:the fact that the Breezewaylink is pro- posed for the western edge of the Greater .protecting the diversityof faunaand Toronto waterfront offers both continuity flora, ecosystems,communities, with the Waterfront Trail and a unique and landformof Halton;

271 .maintaining the water quality and intensive public use through a series of natural flow regulation of rivers major regional waterfront parks at intervals and streamswithin Halton; along the entire Halton waterfront; and .providing expanded opportunities for to provide accesslinks between them on a variety of public outdoor recreation existing and proposed public lands and activities near urban settings; roadways.In the words of the Halton plan, .contributing to a continuous natural The concept excludes a waterfront strip open space systemto provide visual along the entire.shoreline, as previously separation of communities and to envisioned in the Halton-Wentworth provide continuous corridors between Waterfront Study,and instead provides ecosystems;and a nodal rather than linear pattern of .protecting significant scenic and open spaceareas. cultural landscapes,including However,local municipalities have archaeological resources. considerable discretion in interpreting the regional plan and articulating local The Halton ParkwayBelt Review waterfront policies. Committee has since ~commended that As noted previously, Burlington is in Sixteen Mile Creek be included in the the process of reviewing its Official Plan and ParkwayBelt designation in order to preserve intends to develop waterfront policies as major green space.The Committee's recom- part of that reviewprocess. The review will mendations have not yet been heard by include a reappraisal of extensive lakefilling Regional Council and a provincial amend- proposals for the vicinity of the downtown ment would be needed to the ParkwayBelt waterfront. In the interim, the municipality WestPlan, if those recommendations were is proceeding on a site-by-sitebasis to to take effect. ensure that waterfront public accessis The ParkwayBelt Plan is a corridor obtained whenever there is development plan for major infrastructure (e.g., roads of waterfron t lands. and utilities) and open space (e.g., urban A Gallup Community Attitude Survey separatorsand natural corridors). While commissioned by the municipality as part of not explicitly acknowledgedas a potential its Official Plan Reviewfound that 82 per tool in the Halton Greenlands Strategy, cent of the City's residentsfelt that it should the ParkwayBelt designation could provide give high priority to increasing public access additional protection for valleylandsand to the waterfront. Moreover, 96 per cent of the adjacent tableland edges,involving the residents felt that new waterfront develop- provincial government in the approvals pro- ment should not obstruct views of the lake cessas soon as a development application or public accessto it. is submitted. The Town of Oakville's long-time plan- ning policy has been to require, as a condi- WATERFRONT tion of development ~pproval, dedication of PLANNING POLICIES a IS-metre (50-foot) strip along the water's The 1982Halton WaterfrontPlan edge whenever waterfront redevelopment recognizedthe needto identifynodes of occurs. This strip, along with required

272 shoreline stabilization, ensuresan incremen- population of 7,500 persons. New light tal extension of public accessto the water's industry and a businesspark proposed for edge. In comparison, the City of Burlington the northern portion are expected to add has no such requirement. The result, as an eventual 14,000to 16,000jobs. noted earlier, is evident in the amount of The Shell House lands represent a land accumulated over time for public access. unique opportunity to acquire several The Town of Oakville's public access hectares for a waterfront park, as part of policy, consistentlyapplied since the mid- the largest secondaryplan along the entire 1970s,has shown great foresight and has Greater Toronto waterfront. These lands been of substantial long-term benefit to citi- also adjoin the proposed Burloak Park, zens. It can also delay recognition of new where extensive lakefilling is proposed. opportunities. For example, the Burloak Designating the Shell House lands as public SecondaryPlan (1991, formerly Shell Lands open spacewould expand public waterfront SecondaryPlan) involves redevelopment accessusing the existing land basewhile of 511 hectares (1,262 acres), including reducing, to some extent, the need for the 4.2-hectare (10.3-acre)lakefront Shell 9.4 hectares (23 acres) of lakefill at Burloak. House lands. The Town is currently seeking The provincially initiated waterfront only a 15-metre (50-foot) wide public access trail study, TheWaterfront Trail: First Steps strip, if and when the lakefront Shell House from Conceptto Reality(Reid et al. .1991),iden- lands are redeveloped. tified the Shell House lands as the first of The Plan also proposes two new eight priority candidates for "green nodes" residential neighbourhoods with a planned along the trail.

The waterfront ShellHouse lands; part of the Burloak SecondaryPlan

273 Urban development strategies and and conservation authority have demon- the forms that we impart to the urban strated leadership and foresight on landscape must reflect our commit- waterfront-related issues.They have tended ment to conserving, developing, and to operate within a broad collaborative sustaining urban places of quality while framework or loose partnership. A renewed satisfying a broad range of bio-physical commitment to ensuring long-term public and cultural needs; those that are func- benefits from both private and public water- tional and those that are symbolic; front projects and to a greater recognition and those that tap our individual and of new opportunities that can bring net collective imagination. environmental gainswould be benificial acobs,P..l99l. Sustainableurbiindl1i!eJo"i1U1!t;MoutteaI: to everyone. J .~r Third Summit of $e World"8 MajorCitie8, RECOMMENDATIONS

PLANNING INITIATIVES 52. The Royal Commission recommends Halton Region is drafting a new that Halton Region, the Town of Official Plan, with strengthened environ- Oakville, the City of Burlington, mental and waterfront policies, scheduled and the Halton Region Conservation to be completed in mid-1992. As part of Authority (HRCA) continue to review its Official Plan Review,in January 1991 relevant documents including official the Region of Halton issueda draft report, plans and any waterfront-specific Land Stewardshipand Healthy Commun- plans to ensure that they incorporate ities: A Vision for the 90's and Beyond, an ecosystemapproach and the nine which setsout valuesand directions for waterfront principles described in changesto the Plan. It presentsa clear and Part I. concise summary of proposed changes,as well as the reasoning behind the proposals. 53. Further, the Commissionrecommends In terms of the natural environment, it pro- that Halton Region, the Town of posesa Greenlands System Oakville, the City of Burlington, and ...to provide a single framework for the HRCA participate in preparing the the protection of the natural environ- proposed shoreline regeneration plan, ment while at the same time affording including the waterfront greenwayand the opportunity for the public to appre- trail, and ensure that any other plans ciate and learn from the ecosystem. for waterfront areasare reviewed Clearly, the region is now moving and/ or developed in this context. beyond formulating ideas to implementing them. 54. The Province should negotiate a Overall, there are also significant Waterfront Partnership Agreement opportunities to create and enhance the or agreementswith the Region of public use and enjoyment of the Halton Halton, as well as with other levels of waterfront. Afvarious times, the local water- government and their agencies,and, front municipalities, regional municipality, where it is appropriate, with the

274 privatesector. The agreementshould preserve and enhance natural usethe Halton WaterfrontPlan as the habitats at creek mouths such as basisfor negotiations,and shouldcon- those at Fourteen Mile and siderthe followingissues: Shoreacrescreeks; .reviewing, within the current .confIrmation of agencyroles in City and Regional Official Plan implementing the plan, with reviews,the City of Burlington's Halton Region as the leading current policy of not requiring co-<>rdinatingagency; dedication of the water's edge .expanding the ability of the for public use as part of redevel- Halton Region Conservation opment activities; and Authority to regulate valleyland .financial arrangements under development, based on ecologi- which the federal, provincial, cal and recreational objectives local, and regional governments, and on planning for protection and the private sector,would from floods and erosion; participate in the development .implementing interim and pre- of the proposed Great Lakes ferred routes for the Waterfront ScienceCentre, as a means of Trail in Halton, as well as devel- educating the public about the oping mechanismsto establish historical, environmental, recre- the trail; ational, and economic importance .making arrangementsto transfer of GreatLakes rehabilitation. federal and provincial Crown lands and waterlots to local 55. The Commissionrecommends that public agencies,at nominal cost, Halton Region, the Town of Oakville, where they are needed for public the City of Burlington, and the HRCA accessand use; re-examine the proposed Waterfront .relocating the Ministry of Urban designation of the waterfront Transportation work yards from Shell House lands and the design of Burlington Beachto allow rede- the proposed Burloak lakefill park in velopment of the present site; the Draft Burloak SecondaryPlan. .exploring the most feasible The municipalities, in c(}-()peration means of removing Ontario with the Province and Shell Canada Hydro's existing electrical trans- Ltd., should also recognize the oppor- mission lines from Burlington tunity to make the Shell House lands Beach; public open space. .identifying opportunities and plans to maintain or create 56. The City of Hamilton, Hamilton green corridors up the valleys Region ConservationAuthority, and of Grindstone Creek, Bronte Hamilton-Wentworth Region should Creek, Fourteen Mile Creek, reviewthe Hamilton BeachNeigh- and Sixteen Mile Creek, and to bourhood Plan and the approved

275 Hamilton Beach Concept Plan to ensure linkages to the Waterfront Greenwayand Trail and other trail systems.This reviewshould evaluate whether the potential for the Breezeway link, public access,and local and regional waterfront recreation are adverselyaffected by the Neighbour- hood Plan. If they are, local and regional usesshould be reconciled.

57. Halton Regionand the provincialgov- ernmentshould provide additional protectionto the SixteenMile Creek valleylandsand adjacenttableland edges;this could be done by designat- ing thesefeatures as Parkway Belt OpenSpace in the ParkwayBelt WestPlan and providinggenerous building setbacksfor adjoining newdevelopment.

276 CHAPTER 8: M ISSISSAUGA

The City of Mississaugais the only local municipality within Peel Region which is located on the Lake Ontario waterfront. The Mississaugawaterfront stretches 15 kilometres (9 miles) along the lake, approximately from Joshua Creek eastto Etobicoke Creek. Its major natural features are the Rattray Marsh at the mouth of Sheridan Creek and the Credit River, the lower course of which is entirely within the Lakefront PromenadePark. The latter, City of Mississauga.In addition, a number which wasofficially opened in May 1991, of smaller creeks enter the lake at various includes an extensiveboat basin with a points along the waterfront. public marina as well as an area for the The waterfront contains a mix of r~located Credit Valley YachtClub. shoreline usesincluding parks, industries, The City of Mississaugalies on the utilities, and residential neighbourhoods. doorstep of the Lake Ontario salmon fishery The proportion of shoreline devoted to and bills itself as the "Salmon Capital of the each use is approximately as foUows: World". In addition to proViding recre~tion public parks, 33 per cent; industrial, 21 per for anglers, sport fishing has contributed cent; utilities and residential, 23 per cent to the local economy of Port Credit and each. Approximately two-thirds of the adjoining harbour areas.The cumulative Mississaugashoreline is protected by impact of Mississauga'slakefilling proposals armourstone and odler erosion control could include diminished cold-water fish measures. habitat, particularly in the nearshore forage The Mississaugawaterfront includes and nursery areas,as well as silting of two major lakefill projects undertaken by nearshore spawningbeds. the Credit Valley Conservation Authority , The Mississaugawaterfront has a mix (CVCA) , atJ. C. Saddington Park and of land usesand a broad range of images:

277 from the abundant life of the Rattray Marsh stood in front of a bulldozef.to block its path. to the LakeviewThermal GeneratingStation's He was not successfulin stopping Phase1, four stacks,or the "four sisters". but in the next four yearscitizens redoubled The natural features of our landscape their efforts to savethe remaining marsh. often conceal their own history: looking at In 1971 the CVCA purchased 9.7 hectares RattrayMarsh, for example, may lead us to (24 acres) of the marsh, the site ofa pro- assumethat we have alwaysprotected its posed marina. natural beauty, its diverse flora and fauna, In the spring of 1973 help came from its uniqueness. In fact, the fight t9 savethe an unexpected source: Lake Ontario rose to existing part of the marsh spanned 16 years, its highest level in more than 20 years,flood- from 1959 to 1975. ing the other low-lying Rattray lands. Citizen If some people loved its natural state, action -combined with nature, and the there were others who wished to develop timely introduction of fill regulations - Rattray Marsh as a site for luxury homes, made the developer decide to sell the replete with yacht basin and marina. In 1965 remaining 23 hectares (57 acres). These the township's engineer announced that lands were acquired by the CVCA and, in the marsh was not worth savingbecause 1975,the marsh and buffer land wasopened run-{)ff water quality would become so poor to the public as the Rattray Marsh Conserva- that the marsh would degenerate into a tion Area. It exists today becausepeople "stinking mess". Early in 1967, the fight perseveredand acted in consort with seemedlost. Bulldozers moved in to begin nature, rather than againstit. Phase1 of the Rattray Park Estates.As a If Rattray Marsh is nature's jewel, personal protest, a neighbourhood boy the "four sisters"of the LakeviewThermal

Rattray Marsh lac/ay

278 Generating Station are a landmark of a dif- from the lakefront to the CanadianNational ferent order. These tall ~tacks,fronting Lake (CN) railway tracks, which are located north Ontario, are a beacon to sailors and boaters of Lakeshore Road. This area includes and, when viewed from the water, are a wel- communities that either have a waterfront come sight: the circular tapered towers are orientation or have the potential for one. somewhatmajestic and contrast sharply with The Draft MississaugaWaterfront Plan the boxy structure of the generating plant usesthe south side of Lakeshore Road as its itself. Moreover, they represent industry, northern boundary. Although it is quitejobs, and the utilitarian parts of the water- wide, Lakeshore Road does not represent a front; and are the most prominent feature major physical barrier to the movement of of the Mississaugawaterfront skyline. people along or into the waterfront area. Between the marsh and the stacks,at Waterfronts are a significant public amenity the mouth of the Credit River,lies the Port serving a variety of interests that Credit community and are both local and harbour. The village of () regional. Conse- Port Credit, on the The Port Credit Harbour Marina at the quently, proximity river's westbank, is part mouth of the Credit River comprises to the waterfront of the original settle- 21 hectaresof land and water, and is generallymeans use by ment, established in one of the largest fresh-water marinas members of nearby 1843.The attractive, (1,000 berths) in North America. communities. small neighbourhood .() The Mississauga of cottage-stylehomes waterfront has a may be designated a Heritage Conservation number of community characteristics that District. The Port Credit downtown, on distinguish it from other waterfront areas. the eastbank of the river, dates back about The housing stock has the lowestpropor- 150years. tion of single detached dwellings of any The Port Credit Harbour Marina at region's waterfront, the highest proportion the mouth of the Credit River comprises of high-rise apartment dwellings, and the 21 hectares (51 acres) of land and water, third-highest proportion of rented dwellings and is one of the largest fresh-watermarinas of any local waterfront in the Greater (1,000 berths) in North America. Two Toronto region. (Most high-rise buildings rubble and armourstone breakwatersand are north of LakeshoreRoad, not on the a sunken freighter protect the harbour. The water's edge.) Between1981 and 1986, the marina and much of the rivermouth are population of the Mississaugawaterfront under federal ownership and leasedto pri- area grew by a moderate 4.4 per cent to vate operators and yacht clubs, resulting in about 375,000people. In orde~ to meet the restricted public access.Mississauga's Port community's housing needs, construction CreditHarbour and WaterfrontConcept (Hough of a broader range of housing typesand Stansburyand Woodland et al. 1987) pro- tenures should be encouraged. Rental and posesan ambitious revitalization of the area. social housing targetsshould be included in The Mississaugawaterfront area, as waterfront SecondaryPlans and residential the Commission has defined it, extends developmentsshould be designed with

279 particular attention to affordable housing and meeting the housing needs of families with children. In addition, the waterfront rental stock should be protected and improved, to preserve mixed-income waterfro n tn eighbourh oods. The Mississsaugawaterfront is a diverse suburban area that includes a broad range of housing types and tenures, despite the limited variety built over the pastdecade. Unlike the waterfronts of Burlington and Oakville, Mississauga'sincludes a substantial amount of rental housing, particularly in high-rise apartments, most of which were constructed before the 1980s.Average annual row housing and apartment con- struction activity on the waterfront has been relatively low since 1980,because of lakesidePark, Mississauga the limited number of waterfront area sites. Waterfront multiple-unit housing comple- occupations,but substantialdifferences in tions averaged60 units per year, almost income, are explained by the higher propor- 60 per cent of them condominiums, between tion of both older rental housingand younger 1981 and 1988.While waterfront housing adults (aged 20 to 34) in the waterfront area. startshave doubled since 1986,95 per cent People on the Mississaugawaterfront of them are condominiums; no assisted are sligh~y less dependent on the auto- housing or private rental startshave taken mobile than are those from other suburban place in the waterfront area since 1985. waterfront areas:GO Transit accountsfor Mfordability is less of a problem in 10 per cent of all work trips from the the Mississaugawaterfront area than on the Mississaugawaterfront, the highest of any Greater Toronto region's waterfront as a region, while local transit use accounts for whole becauseof the range of housing an additional 5 percent. This greater use of opportunities in the waterfront area, par- transit is the result of both the sizablenum- ticularly its large existing stock of modestly ber of moderate-income households and priced rental accommodation. the better public transit availability, particu- There is no clear distinction between larly the Lakeshore GO Transit route for the occupations of residents on the water- commuters. front and of the region asa whole. However, In 1987-the most recent year for while waterfront residentshave the same which there are data -there were approxi- occupation patterns as those in the region, mately 12,800jobs in the Mississaugawater- they have lower averagehousehold incomes front area, almost 53 per cent of which and represent a higher proportion of low- were in the retail, service, and construction income households. The similarity in sectors,with 47 per cent in manufacturing

280 and wholesaling. Between1983 and 1987, Mississaugaas one of two priority muni- waterfront area employment in the retail, cipalities for such agreements. service, and construction sectorsgrew by The City of Mississaugacontinues to 21 per cent, while manufacturing and work on the MississaugaWaterfront Plan wholesaling increased by only two per cent. and has invited the Royal Commissionand others to comment on its draft document. WATERSHED UPDATE In addition, it is still pursuing those priority In its Watershedreport of August 1990, items identified through its waterfront the Royal Commission made two recom- planning processand contained as major mendations concerning the Mississauga elements of the proposed Partnership waterfront. First, in accordance with a Agreement. request by the City of Mississauga,it recom- In late 1990 the City expanded its mended that the Province declare a Provin- existing Lakeside Park by acquiring the cial Interest in the Mississaugawaterfront, westerly5.3 hectares (13 acres) of the and, second, it recommended that the former National SewerPipe Property from Province negotiate a Waterfront Partnership Petro Canada. In addition, the municipality Agreement with the City of Mississaugaand has co-operated in identifying interim and other relevant agencies.These recommen- preferred waterfront trail routes, which dations focused on creating an open and are to be incorporated in the Mississauga accessiblewaterfront, protecting and Waterfront Plan. enhancing natural areas,and site specific In the pastyear, there has also been redevelopment. action on the highest-priority land acquisi- The Region of Peel in October 1990 tion identified in the draft plan. At the invi- adopted the following resolution as its tation of the Mayor of Mississauga,the Royal responseto the Commission's report: Commission encouraged continued negotia- ...that the principles contained in the tions by the City, Province, Metro Toronto, report titled Watershedbe encompassed PeelRegion, and MTRCA regarqing acquisi- into the review of the draft Regional tion of the Canada Postsite (formerly Cana- Official Plan forming the basisfor dian Arsenalsproperty). Agreement would the development of a regional green- seethe MTRCA acquiring 14.7hectares spaceframework that incorporates, (36.3 acres) of land south of Lakeshore among other things, river valleys,the Road, adjacent to the existing Marie Curtis Niagara Escarpment, the Oak Ridges Park, for waterfront park purposes. Moraine, the Mississaugawaterfront Ontario Hydro responded positively and other environmentally sensitive to Watershed.In addition to supporting plan- features. ning that is consistentwith the ecosystem In December 1990, the Province approach, Hydro recognizesthe importance of Ontario endorsed the Commission's of the waterfront to the community and will nine waterfront principles; agreed that a continue to cooperate with provincial and Waterfront Trail should be established; . local authorities in providing accessto and supported the concept of Waterfront their lands, where space,safety and security Partnership Agreements, identifying considerations can be met.

281 The Petro Conodo refinery, Mississouga waterfront

WATERFRONT Thus far, severalwaterfront planning PLANNING POLICIES documents have been releasedas back- In the absenceof relevant provincial ground studies to the final proposed plan. policies or guidelines and specific regional The documents, Fundamentals,Vision 2020, official plan policies, the MississaugaOfficial and Implementation,were released for public Plan, drafted in1976 and approved in 1981, review in June 1990,and the results of the is the only planning instrument for the reviewprocess were consolidated in the waterfront. Mississauga'sWaterfront Plan, Draft MississaugaWaterfront Plan: Resultsof when approved, will lead to changesto the AgencyReview and Public Consultation (1991). Official Plan, and will consequentlybecome Fundamentalssets out 60 waterfront the major document guiding development planning principles; identifies associated of the waterfront. issues;and applies various setsof principles The Waterfront Plan, begun in to specific waterfront properties. Vision2020, March 1988,is currently in draft form; the the draft waterfront plan, begins by explor- planning processis intended to result ing the planning context and existing condi- in a comprehensive plan for the entire tions of the waterfront, and then setsout Mississaugawaterfront, changesto the general conceptsfor waterfront planning Official Plan, and amendments to water- and an analysisof waterfront issues. front SecondaryPlans. The plan proposes The Visiondocument contains a site- development conceptsfor the waterfront that by-siteplan of the waterfront, analyzingcon- are to be achieved over the next 30 years. straints and opportunities, and proposing

282 strategiesfor each site. Readersare referred The two major components of the to the Implementationdocument for matters draft plan are lakefilling, for a variety of pur- of policy or guidelines. That paper was not poses,and waterfront accessincluding complete at the time of the Commission's acquisition of public land and establishment review,but it is likely to provide a clearer set of a trail system.It proposes approximately of waterfront policies and further guidance 70 hectares (170 acres) of lakefilling in a on lakefilling and urban design issues. series of projects acrossthe Mississauga As Vision2020 notes: waterfront. These will be subject to further In some respects,this Plan should be refinement as environmental imperatives considered a work in progress until the are more fully considered. In addition, relevant investigations by other agencies Vision2020 setsout three planning concepts are concluded and any resulting provin- for the waterfront -that it be green, clean, cial and federal interestsdefined and and accessible-which are among the policies established. Royal Commission'snine principles. The opennessand flexibility of that The Royal Commission, in its review comment is an acknowledgementthat of the Draft MississaugaWaterfront Plan the MississaugaWaterfront Plan is being and supporting documents, is strongly prepared while the work of the Royal supportive of the consultative approach Commission and other agencieshas not adopted by the City. The Commissionhas been concluded. The draft plan, and its also suggestedthat they reconsider water- policies and guidelines, will likely be refined front principles and environmental impera- to reflect the ongoing work by the City of tives, including proposed lakefilling. Mississaugaand other organizations. The Resultsof AgencyReview and Public The Draft MississaugaWaterfront Plan Consultationdocument proposes that the begins by accepting the fundamental direc- Fundamentalsreport not constitute a compo- tion of the WaterfrontPlan for theMetropolitan nent of the final Plan. However,the review TorontoPlanning Area (Proctor Redfern and consultation processconfirmed wid~ Bousfield and Bacon Consultants 1967), a spread support for the 60 principles articu- document never formally adopted by Metro lated in Fundamentals.The Commission is but implemented over the last 20 years. of the opinion that a condensed set of core The 1967Plan included the Mississauga principles should be an integral component waterfront, and proposed extensivelake- of the plan, and the basisfor developing a filling in Metro's portion of the waterfront, clear set of waterfront policies. but said there wasa lack of available and The Draft MississaugaWaterfront Plan suitable material for a similar scheme for would be further improved if it explicitly Mississauga.Vision 2020 further notes that: adopted the ecosystemapproach, and Notwithstanding current concerns included all nine waterfront principles, about the environmental and social as recommended by the Commission's impacts associatedwith lakefill, the Watershedreport, and later adopted by Peel potential benefits of extending the land Regional Council. Elements of the ecosystem baseas proposed by the 1967Metro approach and severalwaterfront principles Waterfront Plan are equally valid today. are alreadyincluded in the draft plan.

283 The draft waterfront plan has two ele- There are severalpotential concerns ments directly related to the environment: with the lakefill component of the draft lakefill proposals and landward environ- plan. First, it may draw attention from mental issueson the waterfront. A 1991 planning opportunities for waterfront Environics poll conducted for the Royal recreation, amenities, natural areas,and Commissionfound that, of all residents in development on existing lands. the Greater Toronto Area (GTA), those in Second, the difficult environmental Mississaugawere most likely to feel that issuesregarding lakefill,a central focus of environmental protection should be the the plan, are not made clear. Rather, the greatestinfluence in any GTA development plan givesthe impression that its impact strategy. on the environment and its cumulative The plan proposes that lakefill be effectshave been fully considered, with used extensivelyin order to create a chain only engineering concerns to be resolved. of islands and to extend the land baseinto No reference is made to any extensiveenvi- the lake by constructing artificial headlands ronmental analysisthat might have taken and marinas. However, there appearsto be place before the lakefill proposalswere little consideration given to the cumulative made. In addition, the goals to be achieved environmental effects of these proposals. by the lakefill proposals in terms of fish

St. Lawrence Cement pier an the Mississauga waterfront

284 and aquatic habitat, public access,etc. are shoreline and coastalprocesses in order to not clear. enhance nature (e.g., "correcting" the lack Third, the lakefill proposals are of a wetland at the creek mouth); but it subject to approval by the provincial and does not analysepossible adverseeffects. federal governments, respectivelythe own- Stormwater managementrelates to the cre- ers of the lakebed and the managersof fish- ationofhard surfaces(e.g., parking lots and eries and navigablewaters. Consequently, roads) near the water's edge, storm run-off, the lakefill proposals are at this stage only and the locations of outfalls for storm and conceptual. combined storm/ sanitary sewers.The Chapter 4 of this report, "Shoreline", Commission expectsthat these issueswill be contains recommendations for a Shoreline more fully addressedas the draft plan moves Regeneration Plan within which various pro- through the planning processand as imple- posalscould be assessed.The study will be mentation strategiesare developed. helpful to the City in this regard. The Draft MississaugaWaterfront Mississaugaindependently commis- Plan notes that half of the 14 utilities and sioned a consultant's report concerning industries situated on the waterfront require Guidelinesfor ShorelineREgeneration RElating accessto Lake Ontario for water intake,dis- toFish Habitat and WaterQuality. It recom- charge or shipping; however,none requires mends initial modifications to the draft exclusiveuse of the shoreline. In addition, waterfront plan's lakefill proposals includ- three of the 14 sitesno longer support ing the elimination of two proposed islands active industrial enterprises (the National and the reduction in the size of the larger SewerPipe East,Texaco CanadaSouth, "Salmon Island". Additional changeswill and St. Lawrence Starch properties). result from more detailed assessments Planning for the future should take of the lakefill proposals. advantageof opportunities as they become While the draft plan mentions such available. In particular, there are significant issuesas site decommissioning, habitat land-basedopportunities offered by three restoration, naturalization, and stormwater non-active industrial sites that together management in waterfront areas,it does not make up 10 percent of Mississauga'stotal yet provide sufficient strategic guidance for shoreline, as well as by recently acquired addressingthese issues. public lands and acquisitions in process. As noted in the .plan, site decommis- sioning and soils clean-up at the former WATERFRONT CanadianArsenals site and at the Texaco GREENWAY AND TRAIL site are important, with implications for The City of Mississaugaplaces impor- the future use of these lands and for other tance on public accessto the waterfront, waterfront properties. Habitat restoration as noted in their draft Waterfront Plan. includes compensation for aquatic habitat Their proposalsare consistentwith the diminished by lakefill and renaturalization RoyalCommission's recommendations in of creek mouths and valleylands.Naturali- Chapter 5, "Greenways",which further zation itself becomesan issue in the draft discussespublic accessto the shore and the plan, which proposesmodifying both the river valleysin the GreaterToronto bioregion.

285 As a result of consultation betweenthe natural features of either regional or inter- City of Mississaugaand the Ontario Ministry regional significance.These features include of the Environment, a tentative agreement the waterfront, the river valleys,and the has been reached to locate part of the Oak RidgesMoraine. Waterfront Trail on the water's edge of the Regional participation in waterfront LakeviewPollution Control Plant, eliminating planning and development has been limited the need for a "lakefill trail link" around to approval of, and financial contributions that site. The trail will connect to adjacent to, the waterfront development program of lands including Ontario Hydro's Lakeview the Credit Valley Conservation Authority Generating Station. Mississaugahopes (CVCA). There has been a lack of effective to begin work on the first phase of the action on regional planning issues.A Waterfront Trail, betweenMarie Curtis greenlands strategyfor Peel in the regional Park and Lakefront Promenade Park, in Official Plan would effectivelyaddress envi- 1992, based on design work begun in 1991. ronmental and human settlement issues.In The Waterfront Trail will connect a particular, such a strategyshould link the series of nodal parks, ranging in scaleand waterfront to the river valleysand head- function from local neighbourhood parks to waters, simultaneouslyincreasing public use regional facilities. The "linked-nodal" strat- and enjoyment, and protecting the environ- egy for waterfront public accessand use is mental integrity of each element. implicit in the draft plan. However, it is The CVCA is proposing a new set of equally important to connect the Waterfront policies to protect watercoursesand valley- Trail to more inland locations, which will lands in the Credit River watershed. In 1988, require special attention to the use of river the Authority commissioned a water man- valleysand floodplain lands, as well as public agementstrategy study, which predicted rights-of-wayand road allowances.Such dire consequencesfor the watershed if new links to the waterfront are essentialto methods are not found to deal with develop- enhanced accessand should be identified in ment. Typical of most watershedsin the the plan. There should also be concerted bioregion, the approach to flooding and regional action to protect the environmen- erosion problems had been oriented to tal integrity of natural features and ensure "engineering", including the channelling that a greenlands strategybecomes an inte- of streamsand constructing rip-rap and gral component of future planning and concrete banks. As a result, fish and wildlife development. habitat were lost and watercoursesand valleysdegraded. PLANNING INITIATIVES The new approachis designed to work Peel Region was formally incorporated with nature and to accepta certain level in 1974 but still lacks an approved Official of erosion as part of natural processes. Plan; a draft plan prepared in 1988was not New policies are designed to avoid future approved by the Regional Council. As a erosjon problems by keeping new develop- result, development is guided by a patch- ment far from valley edgesand by including work of local Official Plans with no clear, water managementas a basic at the begin- region-wide strategyto protect and enhance ning of the development reviewprocess.

286 The valleyland protection policy was and private-sectorinterests. This approved in principle by the CVCA in agreementshould be based,in large October 1991 and is being circulated for part, on the waterfrontplan currently comment prior to being finalized. beingprepared and on the Port Credit Harbour MasterPlan, and otherrele- RECOMMENDATIONS vantdocuments. Among other things, the agreementshould consider: 58. The Royal Commission recommends that the City of Mississauga,the .designating which agencieswill Region of Peel and the Credit Valley implement such an agreement, Conservation Authority continue to with the City of Mississaugain review relevant documents including the lead co-ordinating role; their official plans and waterfront- .incorporating the results of the specific plans to ensure they incorpo- approved MississaugaWaterfront rate the ecosystemapproach and the Plan into the Official Plan and nine waterfront principles described SecondaryPlans; in Part I. .implementing preferred and interim routes for the Waterfront 59. The Commissionfurther recommends Trail, including negotiating that the City of Mississauga,the Region public walkwaysand bicycle of Peeland the CreditValley Conser- paths acrossOntario Hydro lands vationAuthority participate in prepar- and properties with water and ing the proposedshoreline regenera- sewerfacilities; tion plan, includingthe waterfront .establishing suitable mechanisms greenwayand trail, and ensurethat to permit redevelopment of the anyother plansfor waterfrontareas Port Credit Harbour; and are reviewedand/or developedin .finalizing transfer of the Cana- this context.Specifically, the proposed dian Arsenals property from lakefill and shorelinemodification Canada Post Corporation to componentsof the Mississauga MTRCA, so that it can be WaterfrontPlan should be analysed managed as parkland. in the contextof the shorelineregener- ationplan prior to beingapproved.

60. As part of the approval processfor the MississaugaWaterfront Plan, the Province should negotiate a Waterfront Partnership ~eement or agreements with the City of Mississauga,the Credit Valley ConservationAuthority, the Region of Peel, the federal government, and other appropriate agencies

287

CHAPTER 9: ETOBICOKE

The City of Etobicoke waterfront is - approximately 9.7 kilometres (6 miles long) stretching along the Lake Ontario shoreline from Etobicoke Creek eastto the Humber River. Etobicoke Creek forms a major part of the City's western boundary with Mississauga,while the Humber is its eastern boundary with the City of Toronto. The only major watercourseinside the Etobicoke municipal boundaries is Mimico Creek; there New Toronto, as well as the more intensely are, however,several small feeder streamsto developed Mimico apartment strip. The the Humber River and Etobicoke Creek, former Lakeshore Psychiatric Hospital and a significant portion of the west branch site, with its historic quadrangle of residen- of the Humber River, all wholly within the tial buildings, its clock tower and land- municipality. scapedgrounds sloping gently to the The waterfront area comprises parts of water's edge, provides a large window to the the former villages of Mimico, New Toronto, lake in the central part of the Etobicoke and Long Branch, which were amalgamated waterfront. with Etobicoke in 1967.The Lake Shore Lake Shore Boulevard, west of Royal Boulevard commercial strip ties together York Road, is a continuum composed mostly these formerly separatemunicipalities, and of low-rise streetfront retail and commercial provides employment and servicesto their buildings interspersed with newer,modest- waterfront neighbourhoods. Manufacturing scaledevelopments. The wide expanse of and industries are located north of Lake Lake Shore Boulevard, with its ample on- Shore Boulevard. street parking, streetcar service, and broad The neighbourhoods include the sidewalks,creates a neighbourhood feel modest single-familyhomes and small-scale reinforced by the vibrant mixed-income apartment buildings of Long Branch and community that surrounds it.

289 Until the mid-' 80s, the Etobicoke Greater Toronto waterfront. Of the more waterfront had a stable population of about than 10,800dwelling units with development 40,000 residentsand little new development. applications either approved or in process, The area had one of the broadestmixes all but 100 are high-density. of income groups on the Greater Toronto There have been equally dramatic waterfront. Almost 45 per cent of the changes in employment in the 1980s,more waterfront housing stockwas in walk-up than 2,200 full-time manufacturing jobs apartments and 63 per cent of the total were lost (a 33-per-centdecline). In fact, stockwas rental. As a result, this waterfront the Etobicoke waterfront accountsfor almost area had the lowestaverage household all the loss of full-time manufacturingjobs income on the Metro Toronto waterfront, on the Metro waterfront, and it is the only and the lowest proportion of residents area with a net loss in total full-time employ- engaged in managerial and professional ment (-six per cent). In 1990, the Etobicoke waterfront lost a further 800 full-time occupations. Major parts of the Etobicoke water- manufacturing jobs (-17 per cent) and front area are in transition: in part, the total employment declined by an additional substantial loss of manufacturingjobs 3.5 per cent. results from firms shifting production to Thus far, new developmentson the other locations so as to take advantageof Etobicoke waterfront are located east of the increased land values at their Etobicoke Royal York Road in the Mimico section sites.Industrial closings have been accompa- of the waterfront, where the differences in nied by a large number of proposals for scaleand form between new and old are high-density residential development. The striking. Essentially,new waterfront devel- area is tending to shift from an open, inclu- opment has been exclusivewater's-edge sive community of mixed incomes and jobs condominiums catering to upscale adult to isolated new developments that capitalize lifestyles.Moreover, these developments on waterfront locations. Recent waterfront are self-contained-closed and insular housing activity includes a very high pro- vertical communities that appear to exist in portion of condominiums, with major new isolation while exploiting the uniqueness residential developmentsbeing planned of their waterfront locations and views of and proposed. the lake. From 1981 to 1988, housing comple- In the words of a recent advertisement tions on the waterfront were relatively low: for the Grand Harbour development: only 400 units were added. These were In days past harbours filled with the rich balanced among ownership, assisted,and rewards of international trade brought rental housing and reinforced the mix of prosperity to the world's great cities. tenures in the community. Recent housing Today waterfronts are the exclusive startssince 1986 have shown a dramatic reserve of the world's most elegant change: almost 2,000 dwelling units have residences.Presenting the homes of been started. The Etobicoke waterfront has Grand Harbour, tradition,ally styled resi- more housing units in the development denceswith exquisite site details and approval process than any other area on the finishes crafted from brick, slate and

?on stone. Strategicallylocated on Toronto's An additional 3. 7 hectares (9 acres) of waterfront. Traditional Waterfront lakefill are proposed to smooth out the ResidencesFrom $349,000To Over shoreline at the motel strip and provide a $2,000,000. minimum 50-metre (164-foot) wide public Large portions of the Etobicoke lake- amenity strip. (The existing shoreline con- front have been altered from their natural sistsof unregulated lakefill dumped primar- state by major lakefills. Humber BayPark ily during the 1950s,which has created an Eastand Humber BayPark West now flank unnatural and irregular edge of indenttions the mouth of Mimico Creek and together and protrusions.) As part of the motel strip comprise about 65 hectares (161 acres) of redevelopment, fill is to be placed in embay- lakefill. Colonel Samuel Smith Park, at the ments at Humber BayPark Eastto raise the southern extreme of the former Lakeshore lakebed and create a wetland as a demon- Psychiatric Hospital site, now extends into stration area for stormwater management. the lake and displaces approximately The entire Humber Bayhas been 19 hectares (47 acres) of water surface. identified as part of Metro's waterfront New lakefill proposals include Area of Concern by the International 12 hectares (30 acres) immediately west Joint Commission, as the result of contami- of the mouth of Etobicoke Creek, at Marie nants in the aquatic sediments;metals Curtis Park, to create an artificial boat basin. and organics in the water and biota; and

f/abicakeCreek, Marie Cur/is Park

291 Paintedturtles elevatedlevels of nutrients and bacteria. WATERSHED UPDATE (See Chapter 3 for a more detailed discus- In its 1989 Interim Report the Royal sion of Areas of Concern in the Great Commissionrecommended thClt: Lakes.) Efforts to clean up the waterfront The heritage values of the Lakeshore will be meaninglessunless significant sources Psychiatric Hospital and associated of upstream pollution and sedimentation grounds should be preserved by using are controlled effectively.The recently the site for compatible institutional, formed group, Action to Restore a Clean cultural, and recreational purposes. Humber (1989), has been a strong voice The Ministry of Government Services' of reasonand should be given a prominent current development proposal for housing place at any round table dealing with the on the Humber College site and adaptive Humber River watershed. reuse of the hospital buildings for college Water quality in Humber Bayis gener- purposesis generally consistentwith this ally poor becauseof pollution entering from recommendation. the Humber River,Mimico Creek, and the In Watershed(1990), the Royal Humber SewageTreatment Plant. Further- Commissionmade three recommendations more, the bay is sheltered from the main-lake concerning the Etobicoke waterfront: circulation currents and has been described as a "bathymetric trap", in which most of the .that the Province declare a Provin- sedimentsdischarged into it accumulate cial Interest in the Etobicoke water- and remain relatively undisturbed. An area front area and its immediate of sediment, described by the Ministry of hinterland; the Environment as "highly contaminated", .that the Province, Etobicoke, and extends south of the motel strip as much as Metro Toronto jointly undertake three kilometres (2 miles) into the bay. strategic planning for the waterfront

292 area, culminating in a comprehensive comprehensivewaterfront plan. It alsoindi. waterfront plan and a consolidated catesthat someprogress has been made waterfront component to the Official towardcreating a waterfrontplanning Plan; and policy that is closerto the nine principles .that the Province, in order to pro- recommendedin Watershed. tect the integrity of these planning studies,impose a moratorium on WATERFRONT development in the waterfront area GREENWAY AND TRAIL until a comprehensive waterfront The basesof a "green net" for plan and changesto the Official Etobicoke are its waterfront and river valleys. Plan are adopted. A si~ificant trail systemalready exists up the Humber River Valley,and there are The recommendations were a beginnings of a similar trail up Etobicoke responseto two factors: the Etobicoke plan- Creek. These valleylands along with those ning approach of approving site-specific of Mimico Creek, should be linked to development applications and narrow area- the waterfront in an integrated greenway specific secondaryplans without a clear trail systemthat both provides public planning strategyand public objectives for accessand protects the environmental the waterfront; second, the magnitude of integrity of natural features and the table- development, either conditionally approved, land edges. in processor proposed, that would, in The Etobicoke section of the total, add as many as 12,000 high-density Metropolitan Toronto waterfront offers dwelling units and 251,000square metres si~ificant potential for a waterfront trail (2,701,741square feet) of non-residential becausenine local parks and five regional space in the waterfront area. parks already exist along the shoreline. In its December 1990 response,the In some sections,because of residential provincial government noted that: development along the water's edge, the ...Etobicoke, Metro and the Province trail route will likely have to follow the first will be working co-operativelyto ensure road inland from the lake. However, there that there is a comprehensive planning are substantialsections where a water's-edge framework for new development in route is possible.Perhaps the greatestpoten- South Etobicoke, culminating inmodifi- tial is from the western entrance to the boat cation to the Etobicoke Official Plan, basin of Humber Bay Park Westto the plus other implementation measures. Humber River, including the Mimico The three levels of government have apartmentstrip. agreed on a program that includes In the Mimico apartment strip, parts extensive community consultation. of the trail and greenwaycurrently exist in In April 1991, the LakeshoreOverview a seriesof unconnected waterfront parks. StudySouth Etobicoke: Draft Report(Butler The strip itself consistsmainly of low- and Group), jointly initiated by the Province, medium-rise rental apartment buildings Metropolitan Toronto, and Etobicoke, was on the south side of Lake Shore Boulevard, completed; it provides a partial basisfor a most on long, narrow lots running down to

293 the lake.The unconnectedlocal waterfront of the apartment strip, have a 15-metre parksin the areainclude: (50-foot) waterfront promenade, with path- waysat the property edges,constructed as .Norris CrescentPark at the foot of a condition of development. Since the mid- Douglas Boulevard over to Summerhill 1980'sEtobicoke has had an informal policy Road, with approximately 200 metres of requiring dedication and construction (656 feet) of lake frontage and extend- of such public accessstrips as part of water- ing 25 to 90 metres (82 to 295 feet) front development. The adjoining Humber inland; BayPark Westand Humber Bay Park East .Amos Waites Park and Swimming Pool constructed by the Metropolitan Toronto at the foot of Mimico Avenue, com- and Region Conservation Authority provide prising about 140 metres (459 feet) of for public access,except in those areas lakefront (including the former Sikh leasedto yacht clubs. Temple lands) and extending 80 metres Further eastis the Motel Strip Secon- (262 feet) inland; dary Plan Area. As a condition of redevel- .Superior Park, at the foot of Superior opment, the developerswill be required to Avenue, encompassingabout 50 metres pay for a Waterfront Public Amenity Strip (164 feet) of lakefront and 100 metres having a minimum width of 50 metres (328 feet) inland. (164feet). In the main, it is to be constrUcted from lakefill and will smooth out the undu- The City of Etobicoke's 1983 Mimico lating shoreline (itself the result of unregu- Study,under review by Council, recognized lated dumping of fill); it will also widen the the potential for a linear waterfront park developmentarea so that a grid streetpattern and boardwalk in the area. What is needed can be provided. The resulting public road to link the existing parks is to negotiate network will provide both public accessto public easementsin perpetuity over the the amenity strip and public parking. intervening privately owned waterfront The adjoining PalacePier development, land, and to extend public use over the to the east,has both a local park and a water's- public portions of filled waterlots. edge public walkway that can be linked to The Mimico apartment strip represents the Waterfront Public Amenity Strip. The an opportunity to work with both rental second phase of the PalacePier develop- property owners and tenants to achieve ment, at the entrance of the Humber River, waterfront accessthat will benefit all has a six-metre (20-foot) wide water's-edge parties. While this is not current practice accesswaythat, in future, can be linked to in Etobicoke, the apartment strip could be trails going up the Humber RiverValley. used as a pilot project for working out ease- ment agreementsthat could be applied WATERFRONT there and elsewhere.Strategies for the nego- PLANNING POLICIES tiation of public easementsare discussed Commenting on Etobicoke waterfront more fully in Chapter 5, "Greenways". planning policies, Watershednoted: The Grand Harbour and Marina Changing values, such as the upsurge in Del Ray developments, immediately east environmental consciousness and the

294 HumberBoy Parks west and east

concern about the quality of life in an do not treat the waterfront as an area intensely urbanized setting, appear to requiring a special planning strategy. Due have caught decision-makersunaware. to the absence of a clear planning strategy, It is not that the City is without plans both Secondary Plans and site-specific but, rather, that the plans to which it applications lack strategic guidance and has committed itself, and those it is public objectives. This lack of clear direction contemplating, may not have been is of particular concern given the densities formulated on the basis of an integrated permitted or proposed on major sections of and comprehensive approach. Public the Etobicoke waterfront. concerns about the barrier effect of There are three plans related to the high-density development at the Etobicoke waterfront. First, the 1Q91 water's edge, about waterfront LakeshoreOverview Study SouthEtobicoke: Draft accessand the cumulative impact of Report has been the major initiative toward lakefilling, have not yet been fully a comprehensive plan for the waterfront resolved. Instead, decision-makersin area. Second, the Motel Strip SecondaryPlan the City have been quick to support (approved by Etobicoke Council February development applications and to grant 1988 and revised May 1990) is the only sec- high densities,because they view the ondary plan approved by Council for any waterfront area as stagnatingand in portion of the Etobicoke waterfront; it has need of revitalization. been subject to a number of further changes Normally, SecondaryPlans are built during the life of the Royal Commission. on policies and strategiesfound in Official Third, there is a Park Master Plan for the Plans. However,Etobicoke's existing Official Colonel Sam Smith Waterfront Area approved Plan and its proposed Official Plan Update by the Environmental Assessment Board.

295 LAKE SHORE OVERVIEW .there be comprehensive planning and STUDY SOUTH ETOBICOKE: modifications to the new Official Plan DRAFT REPORT as soon as possible; The LakeshoreOvervieui Study South .these modifications include revised Etobicoke:Draft RRPortwas initiated by the SecondaryPlan areasand incorpora- Province of Ontario, Metro Toronto, tion of the RoyalCommission's nine and the City of Etobicoke to assessthe waterfront principles; cumulative impact of development applica- .a study be made of the existing indus- tions in the South Etobicoke waterfront trial areas south of the CNR line, to area and outline a planning framework. provide for industrial revitalization This framework accommodates and stabili,~; residential intensification along Lake Shore .the Ci~ of Etobicoke complete the Boulevard with sectionswidened to suit Master ParksPlan and integrate its the approved and in-processdevelopment recommendations into future applications, in the "Mainstreet Activity SecondaryPlans; and Area ". In addition, an industrial-based .a Human ServicesNeeds Assessment Secondary Plan is proposed for the New Studybe undertaken and applications Toronto area. for redevelopment include a social The development applications in impact study. the Mainstreet Activity Area include: the Long Branch Village lands, comprising The Overview Studyhas yet to be fully 11.7 hectares (29 acres); the Lakeshore considered by any level of government, and Psychiatric/Humber College redevelop- consequentlyits recommendations have not ment, 25 hectares (62 acres) in size;the been accepted to date. In the meantime, 8.1-hectare (20-acre) Goodyear/Daniels site; individual developmentapplications and the motel strip of 20 hectares (49 acres) of area-specificsecondary plans continue to land and water; the McGuinnesssite, weavetheir way through the approval 6.2 hectares (15 acres); as well as lands process. adjoining Park Lawn Road. At the sametime as the Overview The Mainstreet area would be Studywas being completed, the Ontario divided into two SecondaryPlan areas:the Municipal Board (OMB) began hearings Mainstreet Lakeshore SecondaryPlan Area concerning the Daniels Group's redevelop- and the Park Lawn/Lakeshore Secondary ment of the former Goodyear Tire plant Centre Planning Area. Significant portions site. The OMB decision of 13 August 1991 of the Etobicoke waterfront area and of confirmed the Daniels Group's Lakeshore the water's edge are excluded from these Village Development, which comprises over two proposed Secondary Plan areas. 1,700 dwelling units, as well as industrial The LakeshoreOverview Study South and commercial space,on 8.1 hectares Etobicoke:Draft RRPortrecommended that: (20 acres) of land. Building heights will range from four to 14 storeysand the devel- a survey of community livability be opment is to proceed in two phases,the considered; second phase to depend on the availability

296 of schoolsand community facilities and and the proposed lakefilling led them to serVIces. request that the SecondaryPlan Area On 1 November 1991 the 6.2-hectare be designated under the Environmental (15 acres) redevelopment of the former AssessmentAct. The Minister of the Envi- McGuinness Distillery site wasreferred to ronment decided not to subject any part of the Ontario Municipal Board (OMB) as a the redevelopment to such a review under site-specificamendment to the Etobicoke the Act. Instead, the Province declared a Official Plan. Provincial Interest in the motel strip and On 21 October 1991, the City of instituted an Environmental Management Etobicoke asked staff to prepare a draft Master Plan (EMMP) /Public Amenity SecondaryPlan for the proposed Park Lawn Schemeprocess within the context of the Road/Lake Shore Boulevard Secondary Planning Act. This processis intended to Plan Area (also known as the Secondary bridge the gap between environmental Centre) -to include both the motel strip and planning concerns. and the former McGuinness Distillery site. The EMMP studywas designed to The OMB began hearings on the Motel addressconcerns about both lakefilling and Strip SecondaryPlan on 1 October 1991. urban design, while the densities assignedin Consequently,issues dealing with the motel the proposed SecondaryPlan were outside strip are being debated prior to policies its terms of reference. The study took place being established for the larger Secondary overjust three months and proposed three Centre area.. elements: a deflector arm (to deflect water Just as there is currently no planning pollution from the development area and to framework for the SecondaryCentre area, create a sheltered mooring basin); shoreline which is a part of the waterfront, there is lakefill to create a public amenity strip; and no comprehensive plan that setsout a urban design guidelines to ensure that built clear strategyand public objectives for the form relationships would be subjectto some Etobicoke waterfront. Such a waterfront type of review. plan is needed, as both a framework for The Minister of the Environment assessingmajor development applications subsequentlyannounced that the proposed and a context for securing public values deflector arm, if it wasto proceed, would and setting SecondaryPlan objectives. be subject to a separateenvironmental assessment.The deflector arm represents THE MOTEL STRIP 5.1 hectares (13 acres) of lakefill, while the SECONDARY PLAN other components are shoreline smoothing In 1988, a 20-hectare (50-acre) Motel combined with a public amenity strip of SecondaryPlan wasapproved by Etobicoke 3.7 hectares (9 acres)and marshes,for Council. The Plan called for 2,700 dwelling stormwater management, which cover units base on a comprehensive land assem- 6.5 hectares (16 acres). bly of the site; (This was consistent with a The shoreline smoothing would help Provincial Cabinet decision in 1977.) the lake flush the shore; however,the deflec- In August1988, citizens' concerns tor arm could potentially reduce flushing about the proposed motel strip developments and create a relativeJystagnantembayment.

297 Although it is recognized as being subject strip, within the broad framework of the to a separateenvironmental assessment, Commission'snine waterfront principles. the arm is included in the revised Motel Having declared a Provincial Interest in Strip SecondaryPlan. the motel strip, the Province askedDiamond The EMMP poocesshas helped clarify Schmitt to provide guidance regarding the public amenity area in the motel strip, built form, public access,and public use but it does not provide a comprehensive in the area. approach to lakefill or other environmental The study, undertaken over eight matters; nor does it adequatelyaddress months, wasreleased for public review in urban design and density considerations. June 1991(A.J. Diamond Donald Schmitt The SecondaryPlan wasrevised in and Company). It began by setting out neigh- May 1990 -in part, to reflect the results bourhood planning objectivesand principles, of the provincially initiated Environmental to be followed in controlling built form in Management Master Plan/Public Amenity the SecondaryPlan Area. The study then Scheme for the area. The proposed water- further developed the neighbourhood front public amenity strip in the revised objectivesand principles in terms of a pos- plan waswidened from the initial minimum sible grid street pattern; open spacelay-out, of 15 metres (50 feet) to 50 to 80 metres including a central park; land use; built form; (164 to 262 feet), predominantly through parking and sun/shade and view studies. proposed shoreline lakefill. The built form objective was to distri- Furthermore, the revised plan allowed bute the massof buildings in such a m~ner incremental development of the waterfront that a livable, open and publicly accessible public amenity area -which means that community would result. Assuming2,721 the entire public amenity strip need not be dwelling units at a density of 3.3 times net established at one time. The revised plan lot area, the Diamond Schmitt studyrecom- also dropped the requirement that the mends that low-scalefour-storey structures McLaughlin portion be comprehensively be built immediately north of the waterfront assembledas a condition for permitting public amenity strip and Lakeside Drive development of the 2,700 units, allows a because,given the orientation of the site, reduction in the amount of parkland that high structures near the lake edge would must be dedicated and off-site development have shaded the entire waterfront park in of affordable housing, and would permit the afternoons. Buildings of eight storeys designation ora school site only if the form were to predominate along Lake Shore and occupancy of developmentswarrant it. Boulevard, with an intermediate zone of six storeysbetween them and the shorter DIAMOND SCHMITT URBAN buildings. The result would be a "stepped" DESIGN STUDY development, in which four-storey structures After the Royal Commission's adjoin the water's-edgepublic amenity strip, Watershedreport wasreleased, the Ontario progressingto six storeysin the middle of Ministry of Municipal Affairs hired the firm the development, and eight storeysalong of Diamond Schmitt Architects to consider most of the Lake Shore Boulevard frontage. urban design and density for the motel At the northeastern Lake Shore Boulevard

298 frontage the structures would rise to a maxi- of modifications. First, Council recognized mum of 15 storeys. that the need for a school site or sites The sun/shade studies in the should ultimately be determined by boards Diamond Schmitt report are shown for the of education and, if they were required, they existing development applications and the should be accommodated in the Secondary 2,700 dwelling units with a floor spaceindex Plan Area. Second, Council provided a of 3.3. They indicate clearly that, using the planning rationale for the location of stated neighbourhood development princi- two 25-storeybuildings on the Camrostsite, ples, any net floor spacewith an index of claiming that it would create a "central more than 3.3 would result in diminished gateway. ..in a distinctive landmark built daylight on the public roadways,sidewalks, form". Curiously, the proposed buildings parks, and interior courtyards of buildings. exceedthe guidelines Council had approved only two weeksearlier. Mor~ver, additional KIRKLAND URBAN DESIGN modifications were made to the site-specific REPORT development policies for the Camrost lands. Mter the Diamond Schmitt report Third, the implementation of the built form was released,the City of Etobicoke hired guidelines wasrelaxed so that they would the Kirkland Partnership (1991) to advise apply in general intent and variations could it and, later, to prepare an Urban Design be permitted by Council. Supplement to the EtobicokeMotel Strip On 17 December1991 the City of SecondaryPlan. The consultantswere Etobicoke presented the OMB with further instructed to use the SecondaryPlan's revisions to the plan, including removal of density of 4.0 times net lot area in devel- the deflector arm. There appear to be an oping guidelines. added number of unresolved issueswhich On 7 October 1991, shortly after the Ontario Municipal Board may consider the QMB began hearings on the amended in the course of its review. They include: the Motel Strip SecondaryPlan, Etobicoke water's-edgelocation; density transfers from Council endorsed a revised SecondaryPlan. water to land; ultimate densities (including Using a 4.0 times density, the urban design bonusesand the treatment of seniors' units); supplement to the plan allows maximum the adequacyof built form guidelines in building heights of 10 storeyson the first relation to detailed sun/shade studies and blocks inland from the waterfront public neighbourhood objectives;affordable hous- amenity area and 15 storeyson the second ing; and implementation mechanismsfor blocks, which front Lake Shore Boulevard. the plan. In its deliberations, the OMB will In addition, a maximum building height also have to bear in mind the Province of of 20 storeyswould be permitted at the Ontario's Declaration of Provincial Interest Lake Shore Boulevard frontage of the in the motel strip. Camrost lands. The lack of a comprehensiveEtobicoke On 21 October 1991,Etobicoke waterfront plan, a~noted earlier, is a major Council approved additional changesto impediment in assessingthe public values the proposed motel strip plan that was and objectives for the motel strip, and for before the OMB. There were three types assessingthe secondaryplan itself. The

299 Royal Commission believes that it is impor- for both local and regional visitors of all tant to recognize how much is at stake. As ages(Ontario. Environmental explained in the following chapter on the AssessmentBoard 1980). Central Waterfront of Greater Toronto, the The proposed park, shown in Map 9.1, entire eastern part of Etobicoke, including is intended to serve both local and regional the motel strip, is part of Humber Bay. It is needsand, in part, addressa critical shortage in the public interest to ensure that plans, of public park spacein the South Etobicoke decisions,and developmentstake this area. broader context into full account. Since the original approval wasgiven, there have been severalchanges to the THE COLONEL SAMUEL geographic limits covered by the proposal, SMITH WATERFRONT AREA including the removal of approximately In 1978 tht!'Metro Toronto and 6 hectares (15 acres) of Humber College Region Conservation Authority (MTRCA) and Metro Works Department lands and prepared a park Master Plan for the Colonel the addition of 13 hectares (32 acres) of Samuel Smith Waterfront Area, covering the psychiatric hospital site, which were the area south of Lake Shore Boulevard, purchased from the Ministry of Government benveen23rd and 13th streets.The plan Services(MGS). The Ministry of the provides for a multi-service park, including Environment's Environmental Assessment moorings for 335 boats and a boat basin to Branch has yet to consider the impact of be constructed through substantiallakefilling. these changes on the delivery of other It includes park useson parts of lands public elementscontained in the approved owned by the Metro Works Department, MasterPlan. Substantiallakefilling, com- Humber College, and on the Lakeshore pleted in 1990,created the headland and Psychiatric Hospital site. boat basin. In approving the Colonel SamuelSmith The only element of the Master Plan Master Plan in 1980, the Environmental that has proceeded to date is a Boating AssessmentBoard summarized the Federation Concept Plan providing for an undertaking: eventual 500 boating slips and adjoining The Colonel Sam Bois Smith Water- parking for 500 cars. Phase1 of the proposal front Area will provide 70.5 acres of provides for 250 moorings and associated recreational/ educational park space on waterfront parking to be completed in 1992. the Etobicoke waterfront. ..48.5 acres The latter is to be used exclusivelyby federa- of the park would consist of landfill tion members for their cars and for winter extending approximately 1,500 feet into storage of boats. Lake Ontario. ...The components of There is no indication of the timing the park would include an artificial of delivery, location, and funding of most swimming lake, mooring facilities for of the public elements in the approved boats, an amphitheatre, environmental 1980 park Master Plan. However,the water- gardens and educational display areas, front/fitness ,trail is to be in place within a fitness trail, sunbathing beaches,and three yearsand there are to be passive passiveareas for picnicking and viewing, areasavailable for picnicking and viewing.

300 Map9.1 ColonelSamuel Smith The provincial decision, added to WaterfrontArea Master Plan-1980 MTRCA's purchase of surplus Lakeshore Psychiatric Hospital lands, means that the overall land base of the park will be bigger than originally planned. Therefore, while the planning context has shifted, there would appear to be sufficient lands to incor- porate the public elementsand it may be possible to ensure that they are delivered, especiallyif all parties are prepared to work together.

RECOMMENDATIONS

61. The Royal Commissionrecommends that the City of Etobicoke, the Regional Municipality of Metro- politan Toronto and the Metropolitan Toronto and Region Conservation Authority (MTRCA) continue to review relevant documents including official plans and waterfront-specific plans to ensure that they incorporate an ecosystemapproach and the nine waterfront principles described in MTRCA acknowledgesthe lack of certainty Part I. regarding delivery of these public elements. The successof the park and plan- 62. The Commission further recommends ning for its public elementsis linked to that the City of Etobicoke, Metro- integrated planning for the proposed politan Toronto and the MTRCA par- MGS/Humber College development and ticipate in preparing the proposed the proposed expansion of the R. L. Clark shoreline regeneration plan, including Filtration Plant. the waterfront greenwayand trail, and On 27 November 1991, the provin- ensure that any other plans for water- cial government announced that as com- front areasare reviewed and/or pensation for a settlement of the Toronto developed in that context. Islands issue, about 9 hectares (23 acres) of the MGS/Humber College development 63. The City of Etobicoke, Metropolitan would be made available as additional Toronto, and the Province, in partner- parkland to Metro Toronto and Etobicoke, ship with the lakeshore community, leaving about 15 hectares (39 acres) for should jointly implement the following redevelopment. recommendations of the Lakeshore OverviewStudy South Etobicoke and of the Royal Commission:

.to prepare a comprehensive Waterfront Plan for the Etobicoke waterfront area and modify both the Official Plan (to create a con- solidated waterfront component) and SecondaryPlans; .to enhance comprehensiveplan- ning in South Etobicoke's water- front area by: -preparing and approving a New Toronto Industrial SecondaryPlan and a study of industrial revitalization and stability in the broader area south of the CNR tracks; -adopting two additional secondary planning areas (the Mainstreet Lakeshore and the Park Lawn Road/Lake Shore Boulevard SecondaryCentre Planning Areas); and -preparing long-term imple- mentation strategiesincluding a Parks Master Plan, Human ServicesPlan, Metropolitan Waterfront Plan, and inte- grating the recommendations ~of those plans into Secondary Plans.

64. The Metropolitan Toronto and Region Conservation Authority should under- take a public review to update the approved 1980 Colonel Samuel Smith Park Master Plan.

302