barrie waterfront + marina strategic plan attachments
The Planning Partnership June 10th, 2013
Table of Contents
A. Waterfront Planning Approaches A1
B. Vision + Principles B1
C. Administrative Strategy C1
D. Economic Development D1
E. Background Review E1
F. Public Information Centre Panels - June 2012 F1
G. Public Information Centre Panels - November 2012 G1
A: WATERFRONT PLANNING APPROACHES
(with adjacent neighbourhoods, the downtown). Reinforce 1. Removing barriers/Making Connections key perpendicular streets and activity corridors. Overcome Introduction 2. Building a network of spectacular waterfront parks and public spaces barriers (e.g. highways, railways, property boundaries). Waterfront planning has evolved since the mid-twentieth century when changes Avoid creating a “thin line” of development at the water’s 3. Promoting a clean and green environment to transportation technology instigated a decline of industrial ports worldwide. This edge by extending waterfront uses inland and inland uses to memorandum provides a brief overview of approaches to waterfront planning and the waterfront. Connect places along the waterfront. 4. Creating dynamic and diverse communities. development from the 1960s to present (with a focus on the latter), and highlights The key public moves in support of these principles include public transit upgrades the key principles of recent waterfront planning initiatives in Toronto, Seattle, Public Ensure public access to the waterfront. Enlist the public in shaping a vision for the waterfront’s development. alongthe waterfront, reconfiguring the Gardiner Expressway which currently divides Peterborough and Brantford. the waterfront from the city, improving and expanding public open spaces, and Multi-use Incorporate a variety of uses that provide activity all day and preparingland for redevelopment by undertaking soil and groundwater remediation and all year long. This includes seasonal outdoor activities, and a floodwater protection. Toronto’s approach to waterfront planning reflects several of the balance of residential and commercial uses. Layer activities commonwaterfront planning principles identified above, including that the waterfront Principles of Waterfront and uses to create a network of destinations that produce “a beconnected, public, multi-use and multi-modal. It also incorporates locally-specific whole that is greater than its parts”. elements,characteristics and values reflected in the push to naturalize the mouth of the Planning Don,capitalize on cultural economic development, and improve the Martin Goodman Multi-modal Provide quality infrastructure for all transportation modes Trail. (walking,cycling, rollerblading, public transit, motor vehicles, Reflecting on past approaches that are no longer deemed sufficient helps to build and boats). The City of Toronto has a long history of planning for the revitalization of its an understanding of how we arrived at the current principles of waterfront planning. waterfront, but this attempt appears to have prevailed. The strength of consensus When cities began to re-imagine their post-industrial waterfronts in the 1960s and Dynamic The waterfront reflects and is constantly transformed by around this vision for the waterfront became particularly apparent when thousands 70s, there was a tendency to go big and replicate model strategies pioneered in economic and cultural shifts that occur in a city. To support of professionals and the public joined together in opposition to a recent proposal for places such as Boston. This cookie-cutter approach produced numerous “festival long term evolution and success, the waterfront should be a monorail, Ferris wheel and mega-mall on the city’s Port Lands, which would have marketplaces”and fisherman’s wharfs, which turned out not be economically viable planned and designed with flexible elements that will allow it compromised existing plans and signaled a regressive direction for the waterfront in the long run. Rather than facilitating long-term reinvestment in the waterfront, to adapt to change. (Code Blue TO). many of these initiatives floundered and led to a second round of disinvestment and decline. Numerous other principles, premises, objectives and strategies were identified Instead, recent developments towards implementing the vision for Toronto’s that support these overarching “moves”, and they are listed in the appendix to waterfront have included the completion of new and upgraded public parks and In recognition of past failures, waterfront planning in the last 20 to 30 years has this memorandum. In addition, cities across the globe have identified additional trails (including Sugar Beach, Sherbourne Common, HTO, the Martin Goodman focused on the local, attempting to draw out the unique characteristics and assets principles that reflect their local values and needs, for example as they relate to Trail, multiple “wavedecks” and parks), and the first new building (the Canadian of a particular waterfront. Current day waterfront development also reflects the ecological sustainability, economic vitality, social equity, cultural assets, etc. headquarters for the media company Corus). multi-useand multi-modal thinking that predominates contemporary urban planning and design, which is similarly a departure from post-war paradigms. The common principles related to pedestrian-oriented, mixed use places are applied within a framework that recognizes what makes waterfronts special – most often their Case Studies history,natural draw, challenges/opportunities associated with their post-industrial state, and their central location within the city. Finally, within waterfront planning there is a consistent focus on connectivity, as planners and designers seek to Toronto enhance a sense of proximity by overcoming barriers (such as highways and railways) between the city and the water’s edge. Inthe report, Making Waves: Principles for Building Toronto’s Waterfront (City of Toronto, 2001),the City of Toronto articulated a future direction for its central waterfront, which was After reviewing key waterfront planning texts (listed in the appendix), the following developedwith extensive public input. The end goal of this planning activity was (and principlesor “moves” were identified as being most common to current approaches: continuesto be) to transform and reenergize the waterfront at Lake Ontario, which has been underutilizedand disconnected from the city’s downtown and adjacent neighbourhoods. Locally specific Use placemaking to create a distinctive waterfront that demonstrates local variation, assets, characteristics and TheMaking Waves document focuses on “core principles” and “key public moves” that values. will inform and stimulate further investment. Area-specific details were left to be dealt within precinct strategies, which helped to scope the project and keep it manageable Connected Visually and physically reintegrate the waterfront with the city and effective. The four core principles include:
TORONTO CENTRAL WATERFRONT BARRIE WATERFRONT + MARINA STRATEGIC PLAN - ATTACHMENTS - WATERFRONT PLANNING APPROACHES A1
Other projects that are currently under construction include the mixed use Little Lake, Peterborough communities of River City and the PanAm Athlete’s Village, as well as a stormwater treatmentsystem for the future West Don Lands and Lower Don Lands communities Little Lake is located in the heart of Peterborough at an important node in the Trent- (WaterfronToronto). Severnwaterway in southeastern Ontario. It is positioned adjacent to the downtown core, residential neighbourhoods, parks and natural areas, and supports a variety of uses both on the water and at its edge. Seattle The Little Lake and Area Master Plan was prepared in 2010 to govern future use and The City of Seattle is currently working on a Framework Plan and Concept Design developmentin this diverse area, with the goal of achieving long term restoration and for its central waterfront, located between Elliott Bay and the city’s downtown. This enhancement. The impetus for undertaking the master planning process included process was instigated by the need to replace an existing viaduct and seawall and the implementation of significant improvements to amenities around the lake and has been harnessed as an opportunity to transform the waterfront. This large- an increasing demand for using the waterfront for special events and as a base for scale design process builds on 10 years of planning with a strong focus on public recreationalactivities. A key component of the plan’s development was an open and participation, and will result in a range of public realm improvements along 26 city collaborativeconsultation process through which the local community identified key blocks (Waterfront Seattle). attributes of the study area and opportunities for change. The consultation process also informed the following Fundamental Design and Planning Principles: A series of guiding principles have been established to “capture key civic goals and objectives” for shaping public spaces along the waterfront (Waterfront Seattle). • Connected These include to: • Restored Environment • Create a waterfront for all. • Public • Put the shoreline and innovative, sustainable design at the forefront. • Balanced • Reconnect the city to its waterfront. • Managed • Embrace and celebrate Seattle’s past, present and future. • Tourism and Economic Development • Improve access and mobility (for people and goods). • Showcase for Arts and Culture • Create a bold vision that is adaptable over time. • Focus for Recreation • Develop consistent leadership – from concept to construction to operation. These principles informed the key components of the Master Plan, which include Overall, the intention is to “create an exciting destination with vibrant public and shoreline restoration, nine public parks, six cultural and heritage hubs, a multiuse cultural spaces, access to the water and a new urban street that will accommodate shoreline trail with improved connections to a broader network, three gateways to all modes of travel and provide an important connection in the City’s transportation improve recognition of place, two areas of intensification, dispersed recreational system” (Waterfront Seattle). The core projects informed by, and in support of, the amenities, and 11 “locations to get in the water” (City of Peterborough, 2010). guiding principles include the removal of the Alaskan Way Viaduct, a new Alaskan Like the other case studies presented above, the Little Lake and Area Master Way surface street, new public spaces, and new and improved street connections Plan incorporated the common principles related to connectivity, public access, to the waterfront. mixing uses, and facilitating multi-modal travel. To reflect the local context, there Seattle’s approach to waterfront planning reflects common principles, particularly was a particular emphasis on recreational needs and opportunities balanced with those related to creating a connected, public, multi-modal and dynamic place, environmental protection, and a strategic direction to focus intensification within the although there is little focus on mixed use development, likely owing of a lack of downtown.The dispersion of recreational and tourism destinations also contributed land available for redevelopment. to a balanced approach for mixing uses in a way that enhances the use of the waterfront.
A2 BARRIE WATERFRONT + MARINA STRATEGIC PLAN - ATTACHMENTS - WATERFRONT PLANNING APPROACHES Brantford Waterfront Master Plan
The City of Brantford’s waterfront is comprised of lands abutting the Grand River, its tributaries, the canals and Mohawk Lake in southern Ontario. The waterfront is the City’s largest continuous public space and runs through the centre of the City. It is a great shared resource with a rich cultural heritage, significant environmental features and multiple urban interfaces to adjacent neighbourhoods that include industrial, employment, residential and commercial uses.
The Brantford Waterfront Master Plan was prepared in 2010 to establish a vision and principles to guide the planning and design of these waterfront lands. The vision statement highlights the rich natural and cultural heritage features of the waterfront and establishes a focus on environmental protection, accessibility and appropriate development. The vision statement is supported by ten pillars that serve as broad, yettangible, objectives for protecting, enhancing and managing natural and cultural heritage features, and for shaping change in neighbourhoods, districts, parks and trails. The ten pillars are:
• Link and enhance natural features system
• Protect water quality
• Protect the integrity of the dyke
• Value heritage resources
• Manage naturalized riverside parks and plan for recreation that depends on a waterside location
• Celebrate and leverage the trails GRAND RIVER WATERFRONT Case Study References • Create and promote the waterfront cultural corridor Conclusion City of Brantford. (2010). Waterfront Master Plan. Brantford, Ontario. • Plan for a sensitive urban interface Contemporary waterfront planning is tailored to each local circumstance, while City of Peterborough. (2010). Little Lake and Area Master Plan. Peterborough, Ontario. • Be a model for environmental stewardship applying common principles that have proven effective, including that waterfronts should be connected, publicly accessible, mixed use, multi-modal and dynamic. Cityof Toronto. (2001). Making Waves: Principles for Building Toronto’s Waterfront: Central • Plan based on the watershed Additional principles are often identified to reflect local circumstances, most often Waterfront Part II Plan. Toronto, Ontario. with regard to ecological sustainability, recreation, economic development and Comparedto the previous waterfront planning examples, Brantford embraced a very Code Blue TO. The People’s Plan for Toronto’s Waterfront is Saved. Accessed online tourism. Overall, waterfront planning approaches reflect contemporary planning strong focus on environmental stewardship and protection in its Waterfront Plan, March12, 2012 at http://www.change.org/petitions/city-councillors-respect-the-peoples- and urban design which focuses on the pedestrian experience, while considering plan-for-the-waterfront which was a reflection of its own locally-specific assets and characteristics. Like the unique qualities of waterfronts that arise from their historical and natural role in other waterfront initiatives, the Plan also emphasizes the importance of access and WaterfronToronto. Completed Projects. Accessed online March 13, 2012 at http://www. shaping the city. connectivitybetween the waterfront and adjacent neighbourhoods and destinations, waterfrontoronto.ca/explore_projects/completed as well as public ownership. In fact, “Access” is one the Plan’s six components WaterfronToronto. Under Construction. Accessed online March 13, 2012 at http://www. (the other ones include environment, parks, heritage and culture, destinations, and waterfrontoronto.ca/explore_projects2/west_don_lands/river_city_development neighbourhoodsand districts). Like other waterfront plans, the Brantford Waterfront Master Plan seeks to enhance the vitality and use of its waterfront by not only Waterfront Seattle. Waterfront Seattle Brochure. Accessed online March 13, 2012 at http:// waterfrontseattle.org/The_Project/ enhancing recreational facilities, but also by creating a “cultural corridor” or network of destinations.
BARRIE WATERFRONT + MARINA STRATEGIC PLAN - ATTACHMENTS - WATERFRONT PLANNING APPROACHES A3 Fisher.B. (2004). Waterfront Design. Remaking the UrbanWaterfront. Urban Land Other Resources Resources Institute. Washington, D.C. Marshall, R. (2001). Waterfronts in Post-Industrial Cities. Spon Press. New York Urban design premises: City. • No waterfront is exactly like another, nor should be, and the design should Waterfront Planning Directions Ministry of Municipal Affairs and Housing. (1987). Urban Waterfronts: Planning and recognize the intrinsic qualities of each site. Krieger, A. (2004). The Transformation of the Urban Waterfront. Remaking the Development. Ontario. • Features that recall the underlying structure of the landscape should be used Urban Waterfront. Urban Land Institute. Washington, D.C. Project for Public Spaces. How to Transform a Waterfront. Accessed March 12, to reinforce spatial form and identity. 10 Principles of Waterfront Development 2012 at • Barriers to the waterfront need to be removed, but should not be replaced http://www.pps.org/articles/turnwaterfrontaround/ 1. The transformation along the urban waterfront is a recurring event in the life by new hindrances such as large, inactivated open spaces or inward-facing of a city, and tends to occur when major economic or cultural shifts lead to complexes. Project for Public Spaces. 10 Qualities of a Great Waterfront Destination. Accessed conflicting visions of contemporary urban life. March 12, 2012 at • Multiple linkages to the waterfront should be created, along with multiple 2. The aura of a city largely resides and endures along its waterfront, allowing reasons for going there. http://www.pps.org/articles/10_qualities_of_a_great_waterfront/ substantial changes to occur without inevitably harming its enduring qualities of place. • While remnants of the past are necessary to cities’ social and economic diversity and add to the character of the waterfront, change and adaptation 3. Despite periodic and sometimes rapid change, a waterfront preserves for its are of greater value than slavish historicism. bordering city some inherent and unalterable stability. • Single-purpose transportation systems should be redesigned to create 4. As valuable and often contested realms, urban waterfronts bring forth the multimodalcorridors at the water’s edge, affording pedestrian, bicycle, transit opposing, though reconcilable, human desires to preserve and reinvent. (landside and waterborne), and vehicular access.
5. Even though a waterfront serves as a natural boundary between land and • Improvements in infrastructure along the shoreline should be designed to water, it must not be conceptualized or planned as a thin line. serve multiple purposes simultaneously.
6. Waterfront redevelopments are long-term endeavors with the potential to • The city should be extended to the waterfront; a mix of urban uses, including producelong-term value. Endangering this for short-term riches rarely produces residential, can also play an important role in reuniting the city with its the most desirable results. waterfront.
7. Underused or obsolete urban waterfronts come alive when they become • At the same time, the influence of the waterfront should extend inland to desirable places to live, not just visit. establish greater amenity and value for redevelopment and renewal.
8. The public increasingly desires and expects access to the water’s edge. This • The spatial dimension of offshore water should be recognized for its power to usually requires overcoming historic barriers – physical, proprietary, and shape adjacent land areas. psychological– while persuading new investors that there is merit in maintaining that valuable edge within the public domain. • The transitional space between land and water should be designed with care and consideration, as a provocative environment that engages the land- 9. The success and appeal of waterfront development is intrinsically tied to the bound urban dweller and provides a place to sit, view and linger as well as a interrelationship between landside and adjacent waterside uses – and to the space to move through. environmental quality of both the water and the shore. • Waterfront buildings should be permeable – open to views and public 10. Distinctive environments, typically found at waterfronts, provide significant access – and designed with consideration of the scale, form, and character advantages for a city’s competitiveness in its region or in relation to its rival appropriate to the public orientation of the waterfront. cities. • Civic and community leadership – whether grassroots or through formal channels – should be established to guide the implementation of large-scale projects and to care for them over time.
A4 BARRIE WATERFRONT + MARINA STRATEGIC PLAN - ATTACHMENTS - WATERFRONT PLANNING APPROACHES B: VISION + PRINCIPLES
Introduction Nine Waterfront Planning Principles development and events and programming on the shores of Kempenfelt Bay. (paraphrased) The Barrie Waterfront is intimately connected to the City’s Downtown and neighbourhoodsthrough a comprehensive and interconnected system of trails and parks. This memorandum begins with an outline of the existing waterfront principles and • Clean – minimize impacts on the natural environment then proposes a new vision and updated set of principles that can be used to guide The Barrie Waterfront Plan reinforces the value of this unique asset and establishes a framework for harmoniously balancing the many competing interests, uses and the Waterfront Plan Update and future planning and development activities along • Green – protect, restore and enhance natural features (i.e. Kempenfelt Bay, facilities that bring life to the Waterfront, and ensures its continued success as the the Waterfront. streams, bluffs, woodlots, man-made shoreline, beaches and parks) City grows and evolves over time. Likeall of the Technical Memoranda produced during this Waterfront Plan Update, it • Connected – with natural and cultural heritage of the City and Simcoe is a work in progress. Intended to stimulate discussion and be refined several times County (i.e. through greenway links to natural habitats and historical features, as the Waterfront Plan Update evolves. such as the CNR lines and station) Please take the opportunity to review this work, and to provide your comments • Open – maintain views to the waterfront from the city (i.e. from Nelson Lookout Refining the Principles either at the Working Group and/or Steering Committee Meetings, or through the and Bayfield Street) City’s Project Manager, Walter Fischer at [email protected]. We look forward to • Accessible – provide continuous and barrier-free access to the waterfront your feedback. As noted, the principles utilized in the current Waterfront Plan have served the City • Useable – permit uses that are water-related, compatible with adjacent well over the past decade. Now is the opportunity to refine those principles to reflect uses, propose year-round use and enjoyment, and balance natural and urban the priorities and objectives for the evolution of the waterfront over the next twenty features years. The following refined principles are suggested:
Existing Principles from the • Diverse – provide a range of exciting landscapes and land uses 1. Public
• Affordable– consider the long term affordability of development, including Public ownership of the Waterfront is key to ensuring public access to, and Barrie Waterfront Master maintenance and environmental costs vitality along the shores of Kempenfelt Bay. The City shall protect and enhance public ownership of the water’s edge, with a focus on achieving a highly Plan, 2000 • Attractive – design an attractive and inviting environment connected public water’s edge trail network. 2. Green
Building on nine principles for a healthy and sustainable waterfront borrowed from Future development and programming will minimize impacts on the natural the “Royal Commission Report on the “Future of Toronto’s Waterfront”, Barrie’s Towards a clear “Vision” environment, and the City, along with all Waterfront users, will seek to protect, existing Waterfront Plan focuses primarily on the environmental and recreational restore and enhance natural heritage features along the Waterfront. The function of the waterfront. These principles have served the City well in the ongoing implementation of sustainable design objectives will be considered in all new evolution of the Waterfront. The existing principles, as identified in Section 2 of the public and private sector development adjacent to the Waterfront. The purpose of establishing a vision and principles for a planning area is to existing Waterfront Plan are: identify the core qualities that define (or will define) the area, and key directions for 3. Connected protectingand/or enhancing those qualities over time. The vision and principles also act as criteria for evaluating all other elements of the Plan to ensure consistency, The Waterfront is physically and visually connected to the Downtown and coherence and purpose. other adjacent neighbourhoods, as well as to key natural and cultural heritage features of the City and Simcoe County. Views of the Waterfront are to be The existing Waterfront Plan does not include a vision for how the Waterfront protected along roads and through parks features. An uninterrupted system functions and evolves over time. As such, a new vision that reflects the key defining of public trails and roads will be a characteristic of the Waterfront experience. features and opportunities along the Waterfront is proposed: Enhancedconnectivity will be achieved through the ongoing implementation of Active Transportation objectives. The Barrie Waterfront is the City’s greatest asset and attraction, characterized by brilliant natural features, vibrant and diverse public spaces and high-quality 4. Diverse water-based facilities. It is a prized and shared resource for recreation, economic The Waterfront will continue to accommodate a full array of recreational and
BARRIE WATERFRONT + MARINA STRATEGIC PLAN - ATTACHMENTS - VISION + PRINCIPLES B1 cultural facilties, activities and events. In addition, the Waterfront will include economic development opportunities that are water-related and land-based. Achieving a diversity of uses in an appropriate balance will enhance the use of the Waterfront at all times of the day and year, and will include opportunities for business, residents and tourists.
5. Attractive
High quality design is a priority for all public and private spaces and buildings along and in proximity to the Waterfront. Significant public buildings along the Waterfront shall be iconic, and shall become recognizable landmarks for the City. Linkages leading to the Waterfront from the Downtown will promote interaction by incorporating attractive streetscape and park design, creating an inviting environment, especially for pedestrians.
6. Accessible
Continuousand barrier-free access to the Waterfront will be provided for people of all ages and abilities, and safe and comfortable facilities will be provided for all travel modes, especially walking and cycling.
7. Clean
High quality and diligent maintenance of the Waterfront trails, parks and facilities will ensure an enjoyable experience for all Waterfront users, free of pollution. New development shall consider building and landscape materials and techniques that are low maintenance, or maintenance free.
8. Well-Managed
The Waterfront will be managed through an effective administrative structure that will ensure that future Waterfront development will be financially responsible, taking into account short and long-term costs and benefits for the City, its partners and the entire community. The Waterfront administrative structure will be responsible for the implementation of the vision and principles of this Plan.
B2 BARRIE WATERFRONT + MARINA STRATEGIC PLAN - ATTACHMENTS - VISION + PRINCIPLES C: ADMINISTRATIVE STRATEGY
departmentshave overlapping responsibilities and interests related to the planning, Introduction construction,operation and maintenance of parks, facilities, and infrastructure along Waterfront Administration the Waterfront, as well as the coordination of events. These departments, include: Thismemorandum outlines a variety of options for the administration and management of Barrie’s Waterfront. This Technical Memorandum was developed based on a • Parks, Roads and Fleet; Models reviewof case studies, conversations with stakeholders and an understanding of the • Leisure, Transit and Facilities; Several models for waterfront/harbour/port administration are available to draw on. particular conditions and uses of the Barrie Waterfront. It begins by establishing our Most often, these models address multi-jurisdictional challenges, which are not currentunderstanding of the existing administrative and operative context, and then • Engineering; directly applicable to Barrie since the Federal and Provincial governments are not provides a description and evaluation of available models for future administration. • Economic Development; directly involved in the City’s Waterfront. As such, it is essential to recognize the This memorandum concludes with the identification of a preferred approach, and potential for simplicity while reviewing these models. The goal is to reach a balance key actions towards implementation of a new administrative structure. • Culture; that avoids making Waterfront administration more complicated than it needs to be, while still providing a sufficient framework for implementing the Waterfront Plan and Likeall of the Technical Memoranda produced during this Waterfront Plan Update, it • Finance; and, is a work in progress. Intended to stimulate discussion and be refined several times improving interdepartmental coordination to that end. as the Waterfront Plan Update evolves. • Planning Services. Some of the models for Waterfront administration include: Please take the opportunity to review this work, and to provide your comments This approach, including this many players can be confusing and/or cumbersome. • Waterfront Authority or Commission – A separate and quasi-independent either at the Working Group and/or Steering Committee Meetings, or through the For example, Leisure, Transit and Facilities operates the Marina, while Finance agency, such as the Niagara Parks Commission; City’s Project Manager, Walter Fischer at [email protected]. We look forward to manages the funds for this facility. Engineering is responsible for constructing parks your feedback. and other infrastructure, while the maintenance and operation of these elements • Waterfront Development Corporation – A special multi-level government is handled by the Parks, Roads and Fleet department. Parks is also involved in corporations, such as Waterfront Toronto; programming along with Economic Development, Culture and Leisure. • Specialized Municipal Committees or Task Forces – Can include: The overlapping responsibilities and interests among these departments is not Context inherently a problem - it is very likely a functional necessity. Rather, the lack of • Extensions of municipal or other government departments, such as a single, clearly responsible entity and with no formal arrangement for how these Stanley Park or Downsview Park; Barrie’s Waterfront is a tremendous shared community resource that represents departments should interact, or who should take the lead and ultimately be held a dynamic mix of uses and functions. The various Waterfront Planning Areas • Special Task Forces, like Bring Back the Don that includes an accountable, is now being recognized by stakeholders as a real challenge for the contain parks and key public spaces, residential areas, commercial areas, future appointed committee, supported by municipal staff; and/or, future of the Waterfront. development areas, the marina and key components of the City’s land-based • Resting responsibility with one municipal department to oversee and transportationinfrastructure (from Lakeshore Drive to the decommissioned railway In the absence of a clear administrative framework, the intensity of events coordinate all Waterfront related activities. and new multi-use path). Functionally, the Waterfront is a natural heritage resource programmingwithin the Waterfront Area has led to growing conflict among uses and thatsupports economic development and commercial activity, and serves as a year- users. These issues will likely become exacerbated in the long-term as substantial • Memorandum of Understanding among municipal departments (MOU). round recreational hub for residents and visitors. new growth and development occurs adjacent to the Waterfront in the Downtown, and in the south-end of Barrie. Within this context, there is a need for a new, clear Although there is some flexibility in the terminology used to describe different From an administrative perspective, there are both pros and cons to the current approach for administering Barrie’s Waterfront. waterfront administration models, some can be classified as “third party” function-based approach to managing Barrie’s Waterfront. Most waterfronts are arrangements that most often focus on the management of land assets for subjectto inter-jurisdictional complexities, whereby the Federal, Provincial and local development and capital improvements and the management of water-based governments are all involved in one way or another. This multi-jurisdictional context facilities (e.g. docks, boat launch, parking, slips). An Authority or Commission is can lead to conflict and time-intensive decision-making processes. Barrie has an typically mandated through higher levels of government, and is not an appropriate advantage, in so far as the upper levels of government are not involved to any approach for Barrie, and will not be pursued further. significant degree in managing Barrie’s Waterfront resources.
The fact that the City has virtually sole decision-making power over the Waterfront makes its administration simpler from a jurisdictional perspective; however, interdepartmental complexities and historical administrative decisions at the local level have resulted in what is seen as a lack of administrative clarity or leadership.
Currently,the City has no singular approach to managing the Waterfront. Numerous
BARRIE WATERFRONT + MARINA STRATEGIC PLAN - ATTACHMENTS - ADMINISTRATIVE STRATEGY C1 A Waterfront Development Corporation can involve a closer relationship with • As a stand-alone administrative unit with its own dedicated staff – this local government, and a broader mandate to oversee the planning, operations Waterfront Development option has greater administrative costs associated with it and requires its and management of the Waterfront. Specialized Municipal Committees or Task own operating budget; or, Forces are locally mandated and typically involve some combination of staff and/or appointees supported by staff. Corporation • As an interdepartmental group that functions as a coordinating body set- up to address matters related to the Waterfront. This group can be jointly An MOU is more of an administrative tool rather than a model and can be used in headed by a number of directors/management, with support from their conjunction with any of the administrative models. Description existing staff teams; or,
Each of the models is further described and evaluated below, with case studies Waterfront Development Corporations typically have a specific mandate and • As an existing department within the City given the mandate to manage provided in the Appendix. powers to control and oversee development and activity within the Waterfront. As the entire waterfront, with the anticipated cooperation of other City corporations, these are legal entities that operate separate from Council and the Departments. This option was historically what the City did. bureaucracy. As an administrative model, they are particularly complex to set up. A Development Corporation is typically given the task of the management of the Waterfront Authority process leading to the sale of land resources to the private sector for the purposes Evaluation of development. Amunicipal waterfront committee or task force would becomparatively simple to set Description up as an administrative model. More importantly, the key benefit to this approach Evaluation is that it allows the City to maintain a high degree of administrative oversight and A Waterfront Authority is a third-party organization governed by a Board of Directors gives the City the ability to link the mandate of the agency with the vision, objectives (elected or appointed) to oversee the planning and management of the Waterfront Theestablishment of a separate authority with decision-making abilities would create and recommendations of the Waterfront Plan. This model also has the potential and its facilities. Most arm’s length Waterfront Authorities have relatively limited an entirely new layer of bureaucracy and, as a result, could generate inefficiencies to most directly correct the current lack of coordination among City departments mandates, focused primarily on the development and operation of the physical in terms of administrative costs, encumber the timeliness of critical decision- who are responsible for the Waterfront, while minimizing administrative costs. waterfront facilities and associated services provided therein. The implementation making and heighten the potential for inter-jurisdictional conflict in the planning, If given the appropriate mandate, this agency could work towards resolving the of this model separates the governance of the Waterfront Area away from Council/ development, management and enforcement of activity within the Waterfront that ongoinginterdepartmental issues that could otherwise impede the Waterfront Plan’s staff administration. Although the initial establishment of an arm’s length Waterfront is not fundamentally tied to land development. From the City’s perspective, the implementation. Authorityis relatively complex, its administration is relatively straightforward, subject creation of a super-agency to oversee Waterfront Administration would not provide to securing stable revenue sources through user fees and committed funds from the necessary assurances that the City’s long-term Waterfront planning and participating City Departments and Council. development objectives would be pursued and/or achieved. Memorandum of Evaluation Specialized Municipal Understanding (MOU) The creation of another formal entity with a direct interest in the Waterfront could create additional adverse complexity in the regulation and management of uses and activities in the Waterfront. The administrative context in which the Barrie Committee or Task Force Description Waterfront operates within is already multi-layered, with Council oversight and A Memorandum of Understanding is a common tool used between various variousCity departments being responsible for a multitude of functional, investment authorities to articulate a common understanding of their working relationship as it and programming activities/responsibilities. The creation of a Waterfront Authority Description pertains to a particular issue or objective. It is a written agreement that establishes a would essentially create another layer of bureaucracy and thereby increase the structurefor partnership, and includes core principles, objectives and administrative potential for inter-agency conflict in the planning, development, management and A specialized municipal committee or task force is often created to lead the roles and responsibilities of the signatories. enforcementof activity within the Waterfront. The arm’s length nature of the Authority planning, permitting, management and enforcement of development and activity would also mean that Council would have less ability to ensure that the Waterfront within the Waterfront. Such an agency/commission can be implemented through Vision, principles and long-term planning objectives would ever be achieved. Council direction through the enactment of a municipal by-law that establishes a clear mandate. The agency or commission can be structured in one of three ways, subjectto the extent of the agency’s scope and a subsequent assessment of staffing needs and budgetary requirements:
C2 BARRIE WATERFRONT + MARINA STRATEGIC PLAN - ATTACHMENTS - ADMINISTRATIVE STRATEGY Evaluation changes and/or public realm improvements that may be required to Proposed Barrie Waterfront implement the Plan; and, The development of a Memorandum of Understanding related to Waterfront • The face and voice of the Waterfront who acts as the primary advocate for planning, management and enforcement would likely be subject to lengthy, and the shared interests of municipal departments when dealing with all issues potentially contentious, negotiations, however, the process could also be a Administration Strategy of Waterfront. constructive platform to raise awareness of the City’s vision for the Waterfront, The proposed Waterfront Administration Strategy is based on the philosophy that foster a spirit of collaboration between the various interests. An MOU would work the long-term development of the Barrie Waterfront must serve the public interest • Committee members will: well with a specialized City Committee or Task Force. and ensure that the vision and principles of the Waterfront Plan are considered • Act as stewards of the Waterfront Plan within their own departments; and, and upheld. The central component of the Strategy is the establishment of a new InterdepartmentalWaterfront Committee, whose goal, objective, structure, functions • Beresponsible for communicating the ongoing activities of their department Preferred Approach: and funding are outlined below. as they pertain to the Waterfront to the Committee as a whole. Goal: The Committee as a whole will:
Interdepartmental To protect, preserve and promote the vitality of the Barrie Waterfront. • Share information on the ongoing activities of the individual departments as they pertain to the Waterfront; Objective: Waterfront Committee • Identify opportunities to address potential challenges, minimize conflicts, To better manage and regulate development and activity within Barrie Waterfront overcome constraints and maximize the impact of investments in the Based on the comparative evaluation of administrative models, and discussions to ensure that it continues to be a vibrant and active focal point of the City, while Waterfront; with stakeholders, the preferred approach to future Waterfront Administration mitigating conflicts between uses/users and reducing impacts on the environment in Barrie, at least in the short to mid-term, is to establish an Interdepartmental and its cultural legacy. • Coordinate interdepartmental work to implement the Waterfront Plan and WaterfrontCommittee, or Working Group, that is governed by a clear Memorandum any other work that may involve the Waterfront; of Understanding. Structure: • Monitor the interdepartmental work on the Waterfront and prepare annual TheInterdepartmental Waterfront Committee membership should be headed by a This approach is preferred because it most directly addresses the current lack progress reports on the Plan; and, of coordination among City departments who are responsible for the Waterfront. senior City bureaucrat from the City department that is best equipped to achieve Coordination is required because the independent departments lack the mandate the goal and objective of the mandate, with dedicated staff support from all other • Coordinate future Waterfront Plan Updates and any public consultation to manage the types of comprehensive planning and physical improvements affected City departments. events pertaining to the Waterfront. being proposed through the Waterfront Master Plan Update. Within this context, The remaining members of the Committee should be other senior staff members an Interdepartmental Waterfront Committee with specific powers to facilitate and (directors, managers) cross-appointed from all relevant City departments As all coordinatethe implementation of Waterfront initiatives is needed to mitigate conflicts individual departments do, this Committee should take direction from, and report to and maximize opportunities for success on the Waterfront. CityCouncil. The Committee should be convened on a monthly basis, with a defined Next Steps agenda managed by the Chair. Compared to the other models, a Interdepartmental Waterfront Committee allows To implement the proposed Waterfront Administration Strategy in the immediate the City to maintain a high degree of administrative oversight to ensure its long-term Functions: term, City staff and Council will need to undertake the following next steps: Waterfrontplanning and development objectives are achieved. This model can also be structured to produce minimal start-up and ongoing administrative costs, which The primary function of the Interdepartmental Waterfront Committee will be to • Establish a mandate for the Interdepartmental Waterfront Committee is an important consideration in these times of fiscal restraint. facilitate and coordinate the implementation of the Waterfront Plan as it pertains to that builds on the proposed goal, objective and functions outlined above. infrastructureupgrades, public realm improvements, environmental management, The mandate should be focused on implementing the objectives and Pairing the Interdepartmental Waterfront Committee model with an MOU will also future development, events programming, and the planning, construction, recommendations of the Waterfront Plan. serve to raise awareness of the City’s vision for the Waterfront while clarifying maintenance and operation of facilities. the departments’ working relationships and fostering a spirit of collaboration. • Secure funding from the City’s operating budget for the Chair and support Functionally, the preferred Interdepartmental Waterfront Committee builds on the The Committee Chair will act as: staff positions. specializedmunicipal commission/agency model, as outlined in the Administration • Assign or hire a Committee Chair and support staff. Strategy below. • A champion for change on the Waterfront, consistent with the Plan; • A Leader who fully engages department heads and demonstrates the • Identify and assign appropriate senior-level staff to serve as members on Waterfront Committee’s commitment and unity when pursuing regulatory the Committee.
BARRIE WATERFRONT + MARINA STRATEGIC PLAN - ATTACHMENTS - ADMINISTRATIVE STRATEGY C3 • Preparea Memorandum of Understanding for the Committee in consultation 2. Gimli Harbour Authority - Rural grants, and local special sale taxes for specific projects. The Department’s annual with Committee members. Preferably, an objective third party without a operating budget is approximately $5 million, while its capital improvement budget vested interest in the Waterfront (e.g. a consultant or staff member from Municipality of Gimli, Manitoba, Canada is upwards of $10 million annually. In addition to setting fees/rates, the Department a department that is not involved in the Waterfront) should facilitate this also establishes and enforces a range of regulatory ordinances related to fee, process. Overview of Management Framework permitting, operations and land/water use. The Gimili Harbour Authority is a non-profit corporation established under Small Craft Harbour (DFO) guidelines. The Authority manages and operates the Gimli Harbour and related facilities, which are under lease from the Government of 4. Columbia Shuswap Regional District - Appendix 1: Case Studies Canada. The Harbour Authority is governed by an elected (by members of the Columbia Shuswap Regional District, BC, Harbour)Board of Directors (7 Directors), representing commercial fishing interests (4), the Rural Municipality of Gimli (2) and the Gimli Yacht Club (1). Planning and Canada 1. Gellatly Bay Joint Management Committee development of the Harbour facilities is done on the basis of 5-year plans, which are advanced annually. According to the current Harbour Master, Gimli’s Harbour Overview of Management Framework - West Kelowna, British Columbia, Canada facilities currently operate at capacity and expansion plans are under development. While the Columbia Shuswap Regional District (CSRD) does not have a formal authorityspecifically devoted to harbour management, the CSRD has been actively Overview of Management Framework Powers and Initiatives involved in the planning and development of a comprehensive framework for In August 2010, the Councils of the District of West Kelowna and Westbank First The mandate of the Gimili Harbour Authority is relatively limited and focused managing water and foreshore development and activity. The CSRD’s jurisdiction Nation signed an agreement to jointly oversee management of Gellatly Bay on the largely on the management and maintenance of harbour facilities and ensuring extends over four primary water bodies: Shuswap Lake, Mara Lake, Little Shuswap Okanogan Lake. The Agreement establishes the Joint Management Committee, the long-term sustainability of the local commercial fishing industry. The Authority Lake and Little River. The CSRD works closely with the Provincially-initiated comprised of two representatives from each Council. The binding Agreement is responsible for establishing a framework of user fees and rates to cover all Shuswap Lake Integrated Planning Process (SLIPP), which was established to recognizes each Council’s interest in the Bay, including the Westbank First Nation’s operational expenditures. The Authority also establishes a user handbook and provide better coordination among the various regulatory agencies and interests intent to file a Specific Claim for past government actions that resulted in a lost of enforces its own set of Moorage Rules and Regulations. involved in planning and development activities on and around Shuswap Lake. the foreshore lands. SLIPP includes representation from 14 agencies/interests from the Federal, Provincial, Regional and First Nations governments). The intent of the agreement, in addition to establishing a management framework, is to facilitate cooperation between the two governments to ensure activities and 3. Juneau Docks And Harbors Department - SLIPPoperates in accordance with a Strategic Plan and is responsible for reviewing development within the Bay are done in a way that protects the natural environment The City and Borough of Juneau, Alaska, large scale development proposals and their impact on foreshore habitat values; and improves management of recreational uses of the Bay. USA streamliningthe development application review process; developing inter-agency programs for foreshore development, water quality and recreation management Powers and Initiatives Overview of Management Framework monitoring and reporting; and, coordinate stewardship, education, stakeholder The Joint Management Committee’s primary responsibility is to review and engagement and enforcement initiatives. The Juneau Docks and Harbors Department is a City/Borough Department. The recommend policies to their respective Councils on the public and private use of Department is responsible for maintaining and operating all City-owned harbor the Bay. The Committee’s policy work builds on the recently established W1 (Water Powers and Initiatives facilities. The City’s extensive harbour facilities include: two cruise ship docks, Use – Recreational) Zone passed by the District of West Kelowna. The intent of Building on the recommendations stemming from the Shuswap Lake Foreshore a number of small boat harbours, boat launch facilities, two commercial loading the W1 Zoning designation is to prohibit moorage of floating residential structures, Inventory and Mapping Project (June 2009), the CSRD is currently undertaking a facilities, two storage yards, and several hundred acres of tidelands and waterfront such as houseboats, boat houses and boat shelters. Further, the W1 Zone only major initiative to establish a Zoning By-law for the water and foreshore area. properties under lease. permits temporary boat moorage and only where it is accessory to the use of the The Zoning By-law, which is based on the CSRD’s jurisdiction over the lake surface immediately abutting upland parcel. The Department is also involved in a number of development and planning projects, (granted through Provincial legislation; the lakebed jurisdiction is retained by the including waterfront planning exercises, facility design and upgrades and harbour Province), will establish “water use” zones over the surface of the District’s water master planning initiatives. bodies. These zoning designations will, in turn, set standards for permitted uses, Powers and Initiatives the size and density of docking facilities and private moorage buoys. In addition, the new Zoning By-law project is exploring the potential implementation of regulations The Docks and Harbors Department is defined as an “enterprise fund”. This designed to restrict house boating activity in order to preempt any future attempts by distinction means that unlike typical municipal departments, it operates without a individuals to take up permanent and/or longer-term house boat residency. local property or sales tax subsidy. Instead, the Department is financed through a combination of user fees, lease fees, fisheries business taxes, state and federal
C4 BARRIE WATERFRONT + MARINA STRATEGIC PLAN - ATTACHMENTS - ADMINISTRATIVE STRATEGY 5. Kenora Port Authority - Kenora, Ontario Working closely with local government agencies and First Nations, the GVHA Powers and Initiatives defines its role as an advocate for the harbour to ensure the harbour’s continued The Yarmouth Harbour Commission is responsible for the management and Canada function as a marine transportation centre, a working commercial harbour and a operation of all of the Harbour’s marine facilities and services. major tourist node. Overview of Management Framework The Commission operates in accordance with long-term strategic planning The GVHA is governed by a Board of Directors comprised of the Authority’s The Kenora Port Authority was established through a City of Kenora By-law (No. document, which sets out the Commissions overall mission and objectives. The member agencies and organizations, including: the Esquimalt Nation, Songhees 33-2008) in November 2008. The Kenora Port Authority includes representation Commissionis also closely involved in local environmental monitoring and research, Nation, Provincial Capital Commission, City of Victoria, Township of Esquimalt, the from City Council (2), the Lake of the Woods Property Owners Association (1), and working collaboratively with local environmental groups to develop and implement Victoria/EsquimaltHarbour Society, Tourism Victoria, the Greater Victoria Chamber membersrepresenting the local business community (2) and the public-at-large (2). environmental management plans and practices. of Commerce, and the Capital Regional district. All members are appointed by City Council. Additionally,the Commission is responsible for establishing and collecting user fees The Port Authority receives technical support from the Ontario Provincial Police and Powers and Initiatives for moorage, parking and boat launching. Kenora Police Marine Units, municipal planning and engineering staff, the City’s The GVHA is responsible for the long-term planning and management of the four CAO and City Clerk. primaryharbour facilities it operates, including setting users fees/rates and enforcing harbour regulations. 8. Waterfront at Downtown Burlington - City of Powers and Initiatives The GVHA is currently undertaking a comprehensive master planning exercise for Burlington, Ontario TheKenora Port Authority oversees, on behalf of the City of Kenora, the management its Ogden Point facilities, including the establishment of land/water use “zones”. and long term planning of marine facilities within the City of Kenora, including related Overview of Management Framework docking, boat launching and vehicular/trailer parking. Marine facilities within the The GVHA also enforces harbour-specific float home standards established by The Waterfront at Downtown Burlington was a project coordinated by the City of Cityinclude both municipally-owned docks and Federally-owned docking facilities, TransportCanada (2001), which includes standards for construction, fire prevention, Burlington, and funded in partnership with the Provincial and Federal Governments which are managed by the City. The City is currently in discussions with Small Craft waste disposal, plumbing, electrical, buoyancy criteria and moorage, among other and the Burlington Arts Centre. Initiated in 2002, the project concluded within ten Harbours (DFO) to potentially take over ownership of remaining Federal marine technical requirements. years and resulted in the completion of numerous public realm improvements (e.g. facilities. pier, observatory, parks and trails). In addition, the Port Authority is also responsible for developing recommendations 7. Yarmouth Harbour Commission - Isle of related to enforcement and the safe use of waterways within the City. The Kenora Powers and Initiatives Port Authority is responsible for establishing user fees, rental and lease rates for Wight, United Kingdom This project was apparently coordinated by staff in the Parks and Open Space marine facilities. department, who reported to City Council’s Community Services Committee. For Overview of Management Framework administrative purposes, Parks staff worked with at least two private consultants NOTE: The Kenora Port Authority was disbanded in November 2010 under the TheYarmouth Harbour Commission is an incorporated non-profit entity responsible to implement the various waterfront projects. One private consultant was hired to direction of the new Council (based on a recommendation from the former Council). completeengineering work and contract administration, while another was retained The cancellation of the Authority was done as a corporate cost-cutting measure. forthe management of the Yarmouth Harbour, a major commercial and recreational harbour located in the Isle of Wight, UK. to assist with project management (particularly for the technical and cost aspects of The responsibilities of the Authority have been assumed by a committee of Council the numerous projects). and City staff. Much like traditional Harbour/Port Authorities in Canada, the Yarmouth Harbour Commission is led by a Chief Executive/Harbour Master who oversees a group Further details regarding the Waterfront at Downtown Burlington are not available of appointed HarbourCommissioners. The seven Commissions represent the key since no formal plans were ever published and any staff that worked on the project 6. Greater Victoria Harbour Authority - interests in the Harbour’s long-term planning and management, including legal, have now either left the City for other pursuits or retired, and as such were not Capital Regional District, British Columbia, commercial management, coastal environment, community relations, financial available for interview. Canada management,general management, health and safety, and recreational facilities). TheCommission is supported by an Advisory Committee that includes local Council Overview of Management Framework members,representation from local business associations, environmental groups TheGreater Victoria Harbour Authority (GVHA) is a registered not-for-profit “society”, and local boating associations. established under British Columbia’s Society Act. The GVHA is responsible for the operation of four separate port facilities that were divested by Transport Canada in early 2002, including: the Ogden Point Marine Terminals and breakwater, the Erie Street Fisherman’s Wharf, the Causeway to Ship Point and the Wharf Street Docks.
BARRIE WATERFRONT + MARINA STRATEGIC PLAN - ATTACHMENTS - ADMINISTRATIVE STRATEGY C5 a) The following City staff will serve as resources to the Committee:
Appendix 2: Former • City Administrator, or his designate Appendix 3: Marina Study Advisory Committee Terms • Director of Parks and Recreation or his designate Presentation of Reference • Director of Planning and Development or his designate • Director of Municipal Works or his designate Strus & Associates Inc., 2010 • Other staff members, as required. WATERFRONT ADVISORY COMMITTEE In 2010, Strus & Associates undertook a study of the Barrie Marina that outlined City Council will appoint a Chair. existing conditions, the findings of a SWOT analysis, and three options for the future of the Marina. The Study documented existing assets (boat slips, docks, boat COMMITTEE MANDATE: The Committee may appoint special ad hoc committees of its members and/or launches, buildings) and found that the Barrie Marina primarily serves residents The mandate of the Waterfront Advisory Committee is: of citizens at large to deal with any special study or assignment coming within its and does not cater to transient boaters (346 seasonal slips for residents versus 32 jurisdiction. Such ad hoc committees shall deal only with the matter or question that slips for transient boaters). The slip fees were found to be lower that those found “To co-ordinate the planning and development of waterfront-related facilities in is referred to it for consideration and shall be disbanded upon completion of the elsewhere, including Mississauga, Parry Sound, Kingston and Orillia. The Study accordance with the City of Barrie’s Waterfront Master Plan.” assignment. also determined that the design and condition of the facilities was poor and that the Marina lacked parking and competitive amenities (e.g. wifi and laundry). At a higher COMMITTEE OBJECTIVES: Neither the Committee nor any member thereof shall pledge the credit of the City in level, the key issues that were identified include: The Committee members will determine the primary objectives of the Waterfront any manner whatsoever, nor shall the Committee or any member thereof authorize Advisory Committee. any expenditure nor appropriate or expend public monies in any manner unless • a lack of an administrative structure for the waterfront (i.e. no single person authorized by Council. or department is responsible for the waterfront); TERM OF APPOINTMENT: Reporting and Communication Structure • a lack of consideration for the waterfront and marina in key planning December 11, 2000 to November 30, 2003 documents (e.g. the Waterfront Master Plan focuses on parks; the The Waterfront Advisory Committee will provide advice to City Council through the DowntownCommercial Master Plan does not cover the entire Marina; and COMMITTEE STRUCTURE: City Development Committee with recommendations as appropriate. the Marina is outside of the Allandale CIP); and,
Name Membership Term Meetings • potential impacts associated with impending development in proximity to Mayor Jim Perri: Ex-officio Nov.30/03 Meetings will be scheduled monthly or at the call of the Chair. the Marina, if necessary coordination does not occur.
Alderman E.A. Eadie Council Member, Chair Nov.30/03 A majority of the members of the Committee constitutes a quorum. In addition to recommending a new administrative structure (that included a City Centre Revitalization Strategic Committee made up of relevant directors and a Alderman D. W. Morrison Council Member 30/03N ov. Staff from the City Clerk’s Office will act as secretary and provide administrative strong role for the Planning Department), the Marina Study proposed three options support to the Committee. Minutes of Committee proceedings are to be recorded for the future of the Barrie Marina: Alderman B.J. Ainsworth Council Member 30/03N ov. and kept in accordance with the City’s records management practices 1. Status Quo, with basic, minor improvements. The Marina would maintain (pending appointment 01-S-27) Downtown BIA rep. Nov.30/03 mostly exclusive for residents. John Hopkirk Chamber of Comm. rep. Nov.30/03 2. Moderate Change-Shift from Seasonal to Transient Focus. The Marina would Gordon Lugsdin Citizen representative Nov.30/03 becomean integral component of the waterfront and downtown intensification, serving both resident and transient boaters. Alison Luoma Citizen representative Nov. 30/03 3. Substantial Change. The Marina would actively support Barrie’s vision of Carl Thomas Citizen representative Nov. 30/03 being “Central Ontario’s Premiere Waterfront Community”. It would become a destination for tourists and boaters, experience significant expansion, and foster a real waterfront spirit – 12 months of the year.
C6 BARRIE WATERFRONT + MARINA STRATEGIC PLAN - ATTACHMENTS - ADMINISTRATIVE STRATEGY
D: ECONOMIC DEVELOPMENT
City of Barrie, 20 Year Plan - Foundation for Our Future • Opportunities for growth based on strengths in manufacturing, tourism, Introduction and institutions; The Vision 2003-2023 document is intended to assist the City Corporation and • The need to address quality of life issues and gaps between demands on This memorandum begins with a general discussion about some of the economic Council with a framework for identifying new community initiatives and key projects, and supply of infrastructure; development or related opportunities that have been identified through various City and in development of corporate business plans. Key elements from this Plan focus initiatives and then discusses specific waterfront-focused opportunities at various on: • The need to move Barrie’s (perceived and real) position from that of a “blue scales. This memorandum also identifies some policy and procedural issues, and collar” town to one of a more knowledge intensive economy; aprocess for adjudicating private sector economic development activities along the • Economic Development to ensure a prosperous future, including a strong waterfront. downtown with links to the waterfront, and support for existing businesses • The need to bring new vitality and life to the downtown - making it a more and new ventures; comfortable and appealing destination for residents, businesses and Like all of the Technical Memoranda produced during this Waterfront Plan Update, tourists; it is a work in progress that is intended to stimulate discussion and be refined • Maintaining Waterfront Excellence, by supporting public ownership, several times as the Waterfront Plan Update evolves. Please take the opportunity community access, recreation, tourism, and downtown revitalization; • The needto find ways to engage the talents and insights of the private sector in ways that recognize its priorities and return value to its participation; and, to review this work, and to provide your comments either at the Working Group • A Clean and Healthy Environment that maintains ecological and and/orSteering Committee Meetings, or through the City’s Project Manager, Walter environmental sensitivity; • The need to respond constructively to the immediate growth pressures Fischer at [email protected]. We look forward to your feedback. confronting Barrie. • Maintaining Transportation links within and beyond city borders; Many of these issues continue to be relevant today, and were raised repeatedly • Maintaining and Enhancing Barrie’s Premier Lifestyle through innovation during the consultation process conducted for the most recent update of the City’s and collaboration, and encouraging diversity; Previous Studies Identify the strategy for economic development, which occurred during the summer of 2009. In • Maintaining Governance and Service Excellence through a consultative particular the 2004 Strategy identified the need to bring vitality to the downtown, Importance of the Waterfront approach to governance and direct access to local council; the need to move to a more knowledge intensive economy and the need for more effective marketing. • Planningfor our Future by managing growth to maintain a strong communi ty The following studies/reports have been reviewed to understand their current and healthy environment; and, After preparing the 2003 Economic Development Strategy, the City completed role in shaping economic development activity throughout the City and along the additional studies regarding the downtown, cultural economic development and waterfront: • Ensuring Community Safety and Security including efficient and cost- tourism,all of which are summarized in the remainder of this technical memorandum, effective emergency and health-related protection. • City of Barrie, 20 year Plan - Foundation for our Future (2003); alongwith the most recent Economic Development Strategy and Action Plan: 2009- The report’s emphasis on maintaining the city’s lifestyle and the quality of the city’s 2014. • Downtown Commercial Master Plan (2005); waterfrontare major considerations for the economic development strategy as they • Building a Creative Future: A Plan for Culture (2006); representkey elements in the development of marketing and competitive positioning of the community, and the need to address further investment in the downtown. Downtown Commercial Master Plan (2006) • Tourism Barrie, Strategic Plan (2008); In 2005, the city initiated the Downtown Commercial Master Plan for the City’s • Lake Simcoe Tourism Area Assessment (2007); downtown and waterfront areas. The plan identified eight broad goals for the Economic Development Strategy for the City of Barrie (2003) downtown area: • Economic Development Strategy, City of Barrie (2004); and, The 2003 Economic Development Strategy for the City of Barrie articulated a “new • Barrie’s downtown and waterfront revitalization will build on the existing • Economic Development Strategy and Action Plan: 2009-2014. course” for the quickly expanding city: one that would build on current strengths and assets, anchor future development to its history; create new strategies to develop the City’s more knowledge-intensive and value- Much of this work establishes a long-term perspective, but remains relevant and added sectors. As part of this effort, the Strategy identified several key needs for • Protect the waterfront as public land with free access; is consistent with the priorities identified during this project’s consultation process. the City to address: • Keep the land fronting Kempenfelt Bay public to allow public uses at all • The need to articulate an Economic Development Vision and a plan for times; realizing it; • Create a “front porch experience” to the waterfront; • The need for more effective marketing of what Barrie already has in place; • Develop waterfront activities for all seasons and users;
BARRIE WATERFRONT + MARINA STRATEGIC PLAN - ATTACHMENTS - ECONOMIC DEVELOPMENT D1 • Achieve high-quality public spaces to attract high-quality private The plan points out that by strategically investing in the arts and culture in the The City of Barrie’s recent economic development history has been a relative developments; community the City will achieve increased revenues for its businesses and success story. It has emerged as a primary urban growth centre in Southern entrepreneurs and a stronger tax base overall. Ontario and weathered the more recent downturns in the provincial economy • Establish a better balance between cars, cyclists, and pedestrians; and, reasonably well, in contrast to other Ontario communities. It has seen rapid • Encourage a mixed-use downtown and waterfront. economic growth and economic diversity, where quality of life and quality of Tourism Barrie, Strategic Plan 2008 placehave emerged as keystones to its population and employment growth and This plan reinforces the need to address the ongoing revitalization of the city’s its popularity with residents and visitors. But expectations as to the realization downtownand the need to bring year round activity and animation to the core through In response to the findings of the 2007 Premier-Ranked Tourist Destination of opportunities afforded the community are increasing and there is a prevailing heightened investment in the public realm, a high quality built form environment and Framework for the Lake Simcoe Tourism Area (LSTA), the 2008 Tourism Barrie sense that the community to needs to do better by better capitalizing on both its theattraction of key investment. The city’s economic development strategy can play Strategic Plan has incorporated the following recommendations of the LSTA assets and the talent of its people. a role in achieving the vision for the downtown. Assessment report: Coupled with these findings however, is the fact that both the global and • Clarify the role and function of the destination marketing organization in provincial economies are changing - rapidly and irreversibly. The decline Building a Creative Future: A Plan for Culture (2006) the LSTA; of manufacturing in leading industrialized economies, the aging of the baby • Develop product-based partnerships that focus on experience and not boom generation, the dramatic increase in immigration and the implications for The Building a Creative Future Plan creates a 10-year plan for realizing the arts in geography; Canada’s workforce, the rise of a highly mobile knowledge-based workforce Barrie as a life-enriching and wealth-creating opportunity for the downtown core. - all of these new realities hold the potential to shape and challenge Barrie’s While cultural places and spaces were identified all over the City, the Plan places • Set up a task force to evaluate the training needs and recommend a opportunities for future growth. particular importance on the downtown core as the “first cultural place”, and the need training/educationstrategy for tourism/hospitality employees and business for a healthy, sustainable arts community, thoughtful consideration of staged arts owners/operators; Key to the above statements is the focus on “quality of life and quality of place”. facilitydevelopment, the attraction of culture-based opportunities and organizations Certainly the downtown and the waterfront are crucial elements of the image of to the downtown, and a sound marketing and business plan. • Develop and implement a strategy for developing, coordinating and the City, and are fundamental to the ongoing economic success of the City. The enhancing regional tourism events; Economic Development Strategy and Action Plan: 2009-2014 also provides To address issues restricting the arts and culture sector and to promote the sector substantial guidance for the evolution of the waterfront and its future role in the • Ground decisions in marketing research to provide a solid foundation for asan economic driver, the Plan makes recommendations in the following key areas: urban structure of a rapidly growing City, particularly with regard to the expected decision-making and investment credibility; and, intensification of the downtown and new growth in the south end. • Oversight and Capacity Building - including the creation of an • Although branding will be critical to the success of marketing the tourism in-house Cultural Development Office at the City of Barrie; Withregard to the City’s competitiveness in the region, The Economic Development products of the area, it should be delayed until progress has been made in Strategy and Action Plan: 2009-2014 also suggests that the City is: • Facilities and Cultural Places - including facility development achieving other recommendations. (Cultural Community Centre, outdoor performing arts venue, permanent “…well positioned to take a page from the approach of larger jurisdictions Tourism Barrie’s response has been to develop a strategic plan that focuses on: indoor/outdoor Market Hall), relocation of institutions to the downtown and better capitalize on the strengths and talent of its workforce and the core (Georgian College School of Design and Visual Arts, Laurentian • Building a strong destination management organization; unique assets that contribute to its quality of life. As part of this effort, Universityperforming arts), acquisition of strategic properties and retention the city will be able to better market and brand itself as progressive and ofsignificant publicly-owned properties for cultural development, upgrade • Developing assets and infrastructure that are competitive in the Central responsive to both the demands of the marketplace and ultimately its facilities (Fisher Centre) to serve as an interim performing arts centre; and, Ontario marketplace; and, residents - those that live in the community now and those that will come in the future.” • Business Plan Recommendations - including: supporting the • Continuing to strengthen Tourism Barrie’s advertising and promotion. creationand development of artistic programming, sourcing and supporting This statement reinforces the importance of the waterfront as an important investments from other levels of government and organizations, review economic development stimulus. A great waterfront, like a great downtown and cultural facility development, co-ordinate with partners (COO, EDO, The Economic Development Strategy and greatneighbourhoods attract business because they attract people. To reinforce the Tourism Barrie) in the marketing of arts and culture, commit to the Action Plan: 2009-2014 attractiveness of the City to current and prospective residents, the vision articulated downtown core as a principle location of facility investment, align cultural in The Economic Development Strategy and Action Plan: 2009-2014 states that: plans with the Downtown Commercial Master Plan (DCMP) to maximize The Economic Development Strategy and Action Plan: 2009-2014 articulates the downtown wealth creation. relative success, in economic terms of the City over the past decade. The Plan “Buildingon the vision of our community established in the City of Barrie’s 20 states: year Foundation for the Future, the City’s economic development strategy will further the City’s efforts to be an exciting, caring and progressive community. The goals and actions represent a strong commitment to the
D2 BARRIE WATERFRONT + MARINA STRATEGIC PLAN - ATTACHMENTS - ECONOMIC DEVELOPMENT growth and prosperity of Central Ontario’s leading City and most dynamic 1. Use of public park space/facilities for a business - Thiscategory of • This Waterfront Plan Update will identify the locations for the landmark waterfront community.” waterfront business uses the park resource as a “place” to carry out a kiosks, and will provide some examples of what the kiosk itself might business activity related to exercise, boot camps, Tai Chi or yoga. These look like. To achieve this vision, The Economic Development Strategy and Action Plan: uses could occur virtually anywhere, however they will seek out pleasant 2009-2014 identifies a number of key themes, as follows: locations that promote a particular experience for participants. 3. New/expandedmarina opportunities for transient boater facilities and boat charters –The City of Barrie Marina has been described as a high quality • Capitalizeon Educational and Health Care Assets - Attracting businesses, Barrie’swaterfront provides substantial opportunities for the accommodation facility with limited appeal to the transient boater due to a lack of facilities entrepreneurs and investment that will enhance the city’s health and of these types of uses. The impacts of the use are relatively low, however, that cater specifically to the needs of this user. This is a crucial issue education assets; the issue of an individual or a business earning fees based on the use of when considering the potential of the Marina to become an economic • Place Building - Developing a “quality of place” that attracts both business public lands may be a determining issue. Thesetypes of uses may be development generator. Therefore, if capital expenditures are made andresidents with the primary focus on the city’s waterfront and downtown; appropriate, subject to approval by the City based on the following criteria: to expand the Barrie Marina, those expenditures should be focused on providing facilities that will attract a greater number of transient boaters to • Target Strategic Growth - Attracting business and industry that will sustain • This category of use is permitted only within certain parts of the the City, including: and grow the local and regional economy by focusing on creative and waterfront that are specifically identified in advance. Typically, those technology based business and industries; areas would be low public use areas; • Dedicated transient boater slips, of various sizes, that are suitable to accommodate overnight guests, and include access to electricity and • Strengthening our Business Community - Enhancing support for small • This category of use should be limited to times of the day when the water; business start-ups and growing existing businesses; and, park space is not heavily utilized by the public; • Washroom and shower facilities; • Effective Marketing and Promotion - Creating the right reputation and • The use should be licensed by the City and there should be a fee for profile for the City -locally, nationally and internationally. the use to cover park maintenance and to derive the desired economic • Laundry facilities; and, development benefit to the City; These five themes are critical for the City of Barrie to address in order to see • Boating/sailingrelated, as well as convenience focused retail facilities. • Theindividual use should be limited in size (i.e. number of participants); continued economic growth and prosperity. The waterfront is considered a key In addition, Marina facilities could be expanded to accommodate additional fishing component of the future success of the city, and its evolving role in the City must • The number of businesses within this category should be limited in charters and dinner cruise charters. These uses require docking areas with access continue to provide a high quality visual image, as well as to provide recreational, number; and, to a shore zone suitable for loading of guests and supplies. To accommodate these cultural and economic development opportunities for residents, businesses and types of uses there will need to be dedicated boat slips, with an associated and visitors. • If the City’s Recreation Department offers a similar activity, the City appropriate fee for use that recognizes the commercial activity. program should have priority on City property. In order to make a determination on which charters would be accommodated within A Number of Waterfront Specific 2. Small-scale/kiosk opportunities – The City should identify a number of key the City facility, if demand outpaces the supply of space, the City should request Opportunities Require Exploration locations throughout the waterfront to establish small-scale commercial proposals from the interested parties and make a selection based on criteria that opportunities, such as outlets for take-out food and beverage, beachwear, maximizes the economic benefits to the City. Further, charter operators should be andfishing gear and bait. These commercial outlets should be coordinated Barrie’s waterfront is one of the City’s primary assets that attract population and licensed by the City to ensure the safety and quality of the service. with new landmarks that provide tourist information and facilities, along businesses. It is crucial that this valuable resource be protected from inappropriate with rental space for the small-scale retail opportunities. These landmarks This Waterfront Plan will promote a design option, or options, for Marina expansion uses and developments, and continuously improved to enhance the overall appeal would be of consistent design and would be owned and maintained by the that will include the potential locations for the transient and charter boat operations. of the City. City. To implement this concept the City would need to: 4. Larger-scalecommercial opportunities - People are attracted to the water’s Based on discussions with City staff and a review of the previous studies, there • Identify the key landmark locations along the waterfront; and, edge and it is a tremendous business opportunity to locate commercial are a number of “categories” of waterfront-focused economic development facilities that can leverage a waterfront location, such as restaurants opportunities that need to be considered for implementation. It is important to note • Design and build the landmark kiosk that would incorporate tourist and hotels with banquet and convention facilities that enhance tourism that the economic development imperative of this project is based on the City having information, washroom facilities, and small-scale retail facilities. opportunities, as well as other retail and commercial office space that the tools to balance economic development activities with the other recreational bring everyday vitality to the waterfront. The City is taking steps toward and cultural activities that are part of the Barrie waterfront experience. Economic • The individual small-scale retail uses must be approved and licensed the development of a major convention centre/hotel in downtown Barrie, development opportunities are intended to enhance the waterfront experience by the City, and there should be a rental fee established that covers proximate to the waterfront. That facility could be further augmented by in balance with all of the other components inherent to waterfront development. parkmaintenance and that derives the desired economic development additional facilities along the waterfront. The following waterfront-focused economic development opportunities are to be benefit to the City. considered: There are two locations that are considered prime candidates for the
BARRIE WATERFRONT + MARINA STRATEGIC PLAN - ATTACHMENTS - ECONOMIC DEVELOPMENT D3 inclusion of commercial forms of development, the first is the End of A Decision-Making Process is Required Bayfield/Spirit Catcher Area, and the other is the Allandale Station Centre.Both of these locations provide significant economic development It is clear that a decision-making body is required to facilitate all forms of economic opportunities and could accommodate any combination of waterfront developmentopportunities within the waterfront area. There needs to be an authority restaurants/retail stores/commercial office space/hotels and additional where business opportunities are vetted, approved/denied and subsequently banquet and convention facilities. managed.
Thefuture development/redevelopment of these two key locations requires With reference back to Technical Memorandum 3 (Waterfront Administration careful consideration through a comprehensive planning process that will Strategy), the proposed authority would also be suitable as the decision-maker require City approval. When any facility is proposed on lands owned by the on issues of waterfront business opportunities. The mandate must remain clear City, there will also need to be consideration of the form of development – – economic development opportunities are to be adjudicated on the basis of including opportunitiesfor public/private partnerships and/or private lease establishing a balance among the other demands placed upon the City’s waterfront arrangements, and/or private vendor arrangements. resources, and no business opportunity shall compromise the City’s waterfront development objectives. This Waterfront Plan will provide a conceptual development plans for the End of Bayfield/Spirit Catcher Site and the Allandale Centre Station.
5. Residential Land development opportunities - One of the major attributes of Barrie’s waterfront is the substantial supply of land. That land supply creates an amazing public resource that may include some opportunities for land sales for development and/or land swaps for additional water’s edge property. It would be prudent for the City to identify land areas that may be considered surplus, and that may be utilized for other purposes in the future. The overriding objective must be that if any public waterfront land is to be sold or swapped, the outcome must be in the public interest and contribute to the public waterfront park system.
This Waterfront Plan will identify some key properties that may be considered surplus, and that may be utilized for other purposes in the future.
6. Sports tourism – Throughout the consultation process, key informants have identified the objective of attracting water-based sporting events, such as competitive rowing, sailing, dragon boats, and windsurfing to Barrie’swaterfront. Through conversation, there was consensus that these sporting events require a facility from which to operate, and that the facility should include access to the water’s edge with the ability to load various forms of small watercraft into and out of the Bay. In terms of a building, there is typically a requirement for staging space, washroom and shower facilities, and space for a banquet/awards ceremony. The physical space withina building would need to be flexible enough to accommodate various scales of events and include storage. In addition, this type of multi-use facility could accommodate a range of other activities, and longer-term tenants.
This Waterfront Plan will propose a site and conceptual site plan for a permanent sports tourism facility.
D4 BARRIE WATERFRONT + MARINA STRATEGIC PLAN - ATTACHMENTS - ECONOMIC DEVELOPMENT E: BACKGROUND REVIEW
• promote public ownership of the waterfront lands along Kempenfelt Bay and Within the UGC, lands with the greatest development potential include vacant Introduction Little Lake and the development of these lands as a continuous major public and underutilized sites adjacent or near to the Waterfront, which are expected to open space system; accommodate 1,505 residential units (p. 3-5 of the Strategy). Considering that the The Barrie Waterfront Plan Update – 2012 includes a revisiting of the first Waterfront UGC is expected to begin accommodating 30% of the City’s annual growth by 2015, Master Plan adopted by City Council in 2000 to ensure that it remains relevant and • prohibit the sale of City-owned lands and encourage the City to acquire and that these Waterfront lands are considered “ready to go”, the Waterfront will responsive to current directions and priorities. This background review provides a privately owned lands; begin to experience redevelopment in the next few years (p.4-5 of the Strategy). summary of recent Council and City policies, plans and studies as they pertain to • establish criteria for development along the waterfront, including the Beyond the UGC, 6,908 new units are expected to develop within the built boundary landuse and development, economic development, recreation, culture and tourism assessment of impacts; along the Waterfront. by 2031 (Table 1). Intensification opportunities (near the Waterfront and beyond) • support the tourism potential of the waterfront; and, will constitute 80% of this housing supply within the next ten years, and this share Location & Existing Conditions will rise to 85% by 2026-2031 (p.4-4 of the Strategy). • prioritize non-vehicular access and enjoyment. Barrie’s Waterfront is located on Lake Simcoe’s Kempenfelt Bay and is a key Based on the City’s Growth Management Strategy, the character of the Waterfront defining feature of the City’s historic structure. The Waterfront includes an extensive Section 6.5.2.3 City Centre Guidelines also call for the achievement of high can be expected to diversify as new residential development takes hold on key parks system and water-related facilities that vary in terms of the functions they quality design along the waterfront section of downtown, and that development be parcels and adjacent lands, increasing pressure on Waterfront facilities while serve, their levels of utilization, and quality of design and maintenance. The urban pedestrian-scaled, protect view sheds, connect the downtown and waterfront, for increasing the vitality of the area. Transit improvements with the UGC (most notably areas adjacent to the waterfront are primarily low-density residential, with some example through coordinated street furniture and pedestrian and bicycled paths. at the Allandale GO Station) can be expected to also drive growth in the Waterfront higher-densityhousing located closer to the Downtown, which itself is characterized This Section states that the application of the City’s General Design Guidelines area. by commercial uses, heritage buildings and public spaces. A section of the south (provided in Section 6.5.2.2) will be guided by recommendations of the Waterfront shoreincludes decommissioned railway uses. Underutilized and vacant parcels are Open Space Master Plan, when it is prepared. located throughout the waterfront and adjacent communities. Growth Management & Intensification
The City’s Growth Management Strategy: Residential Intensification Assessment Citywide Policies Phase 2 (2011) outlines a plan for accommodating new people to 2031, based on the findings of Barrie’s Intensification Study (2009), which have been incorporated intothe City’s new Official Plan (2011), specifically Schedule I – Intensification Areas Official Plan (currently under appeal at the Ontario Municipal Board). The Growth Management Strategy outlines the location, quantity and timing of growth across the City. The two TheCity of Barrie Official Plan (Office Consolidation March 2011, approved by MMAH key parts of the Strategy are to: but under appeal to the OMB) establishes Council’s goals, objectives and policies for land use, development and growth management. Throughout the document, a) balance the allocation of growth between built up areas and greenfields (i.e. the waterfront is recognized as an important defining feature and asset, from an accommodate 40% of annual growth within the built boundary, as required under the economic, recreational and environmental perspective. The need for improved Provincial Places to Grow Growth Plan for the Greater Golden Horseshoe, 2006); connectivityto the waterfront, enhanced urban design, support for tourism and public and, Figure 1. Location of the Barrie Downtown Urban Growth Centre in relation ownership of land at the water’s edge is identified in specific policies of the Plan. b) direct growth to intensification nodes and corridors. to the Waterfront Section 2.2 Community Vision incorporates elements from the City’s Strategic All of Barrie’s Waterfront is located within the City’s built boundary, and a section of it Table 1. 2015-2031 Anticipated Housing Growth by Area 20 Year Plan, including the principle of “Waterfront Excellence – to recognize the is located within the highest order intensification node – the Downtown Barrie urban Area Residential % of Total % of Total Within Built premierquality and exceptional scope of the City’s Waterfront which promotes public growth centre (UGC) (Figure 1). Under the Provincial Growth Plan, the Downtown Units Boundary ownership, community access, recreation, tourism, and downtown revitalization”. Barrie UGC must meet a minimum density of 150 people and jobs per hectare by Total Within Built Boundary 12,099 40% / The specific land use policies for the Waterfront are found in Section 4.6.2.5 of the 2031, up from its current density of approximately 58 people and jobs (p. 2-3 of the Within UGC 5,191 23% 43% Official Plan, which: Strategy). The implication is that Barrie’s Downtown and sections of the Waterfront Outside of UGC 6,908 17% 57% are required to intensify significantly over then next twenty years, specifically by Greenfield 18,526 60% / • outline permitted uses within waterfront lands designated “Open Space” 5,191 residential units according to the Growth Management Strategy (Table 1). In Total 30,625 100% / (public and private recreational uses and ancillary uses); comparison to the City as a whole, the Barrie Intensification Study notes that the Source: City of Barrie. (2011). Table 4-2. Growth Management Strategy: Residential Intensification highest concentration of people and jobs will be established within the historic cores Assessment Phase 2. of Barrie and Allandale (p.64).
BARRIE WATERFRONT + MARINA STRATEGIC PLAN - ATTACHMENTS - BACKGROUND REVIEW E1 Parks & Recreation Economic Development Culture
The City’s Parks and Recreation Master Plan (2010) establishes a strategic The2009 The Economic Development Strategy & Action Plan was prepared based on In 2006, the City prepared A Plan for Culture, with the purpose of elevating the framework for operating, maintaining, improving and establishing policy for parks the findings from an economic base analysis, the results of an extensive community profile of arts as a “life-enriching and wealth-creating opportunity for downtown” and recreation services, programs and facilities to the year 2019. The Master Plan consultation process and an understanding of the existing policy environment in the (p.7). The Plan recognizes that the revitalization of downtown is one of the City’s outlines a plan for satisfying residents’ passive and active recreational needs to City of Barrie. The Strategy culminates in a set of themes, goals and a vision for key priorities, and that culture is a key opportunity for re-vision the downtown, and provideopportunities for “a health lifestyle, …greater self-esteem, social interaction, economic development in the City, which, among other things, recognize a strong its relationship to the waterfront. economic spending, conservation of natural lands and community vibrancy” (p.1). role for the waterfront. The Plan included a cultural facilities plan, which identified site opportunities for With regard to waterfront planning, the most relevant section of the Plan is For example, the theme of “Place Building” is focused on “developing a ‘quality program-specific uses and functions, such as gateways, theatres, exhibition space, “EnvironmentalProtection and Stewardship”, which addresses the parkland system, of place’ that attracts both business and residents with the primary focus on the studio space, etc. Key sites that were identified along the waterfront include natural heritage lands and waterfront lands. Under this section, the waterfront is city’s waterfront and downtown” (italics added). Flowing from this theme was the SimcoeSt./Toronto St., Spirit Catcher, Memorial Square, Waterfront/Mulcaster, and recognized as “one of the City’s most valuable assets and an important part of goal that “the city of Barrie will enable the development of a vibrant downtown Reservoir. Possible uses are outlined in Table 2, and include outdoor performance the parks system” (p.62). Consistent with Official Plan policies, the Parks and that is recognized for its quality of place and diverse range of natural and arts centres at Simcoe St/Toronto St, Spirit Catcher, and the Reservoir site, a theatre Recreation Master Plan encourages public ownership of the waterfront (through and cultural experiences”. This theme and goal reinforce the role of the waterfront and meeting space at Waterfront/Mulcaster, and an adhoc public stage at the the retention and acquisition of waterfront lands), which should be enhanced as “a as an important economic development stimulus. A great waterfront, like a great Market site (with meeting and exhibition space). The Waterfront in general was also facility for all residents to use”. downtownand great neighbourhoods attract business because they attract people. identified as a key location for festivals and events (p.27). In fact, the Strategy identified the downtown and waterfront as major community In terms of the future of the Waterfront, the Plan recognizes that it is already heavily assets that differentiate the city from its neighbours “in its attraction and retention used, and that demand for public space there will only increase as the City’s of skilled and talented workforce” (p.71). The Strategy recognized that for the population grows. Although population growth will increase demand for parks and downtown and waterfront to fulfill its potential, significant public investment in the recreation facilities and services across the City, the Plan acknowledges that this public realm was required to improve the character of these areas (which were increased demand will be acutely felt along the Waterfront (p. 12). With increased perceived as un-inviting and un-safe by some stakeholders) as a way of stimulating demand, the City will need to do a better job of managing the programming of private investment and development. uses along the Waterfront, since currently no department has been assigned to coordinate its management. The Parks and Recreation Master Plan suggests relevant departments undertake a “process mapping exercise” to identify the areas of responsibility and points of contact between all staff members and their internal Table 2. Opportunities for cultural facilities along the Waterfront and external customers. Other recommendations for the waterfront are as follows:
7-24.Continue to enhance, improve and acquire parkland and/or beach areas along the Kempenfelt Bay and Little Lake waterfronts, while ensuring that the waterfront pathway is continuous and connected to as many parks and attractions as possible. The waterfront path should be an appropriate width to accommodate cyclists, walkers and joggers.
7-25. Undertake a study to determine if there is a significant amount of latent demand for marina and boat slip facilities. If so, the City should undertake a business plan to guide the provision of additional facilities.
Mapping included within the Master Plan identifies the location of facilities along the Waterfront,which largely include extensive parkland, a few community centres, playgrounds andone ice rink near the downtown. The mapping indicates one new playground facility is plannedfor the south central district (Map 13). The Plan also calls for new outdoor fitness facilitiesin strategic locations, “such as along the waterfront” (recommendation 6-12).
Excerpt from: City of Barrie. (2006). Opportunities + Sites Matrix. A Plan for Culture. p.54. Image crediit: MacLaren Art Centre
E2 BARRIE WATERFRONT + MARINA STRATEGIC PLAN - ATTACHMENTS - BACKGROUND REVIEW path.This Planning Area also includes the historic Allandale Station and is home Downtown Commercial Master Plan, 2006 Waterfront-related Plans & Studies tothe popular Kempenfest. Several physical improvements were envisioned for this highly-used recreational space. The underutilized lands near Allandale Buildingon strategic directives to revitalize the downtown and to increase investment Station were also identified as a key redevelopment site. in the waterfront, the Downtown Commercial Master Plan was prepared by the City in 2006. The Master Plan includes an analysis of existing conditions, through which Waterfront Master Plan, 2000 4. (Southshore) - This Planning Area historically served as a major railway yard, a number of issues and opportunities were identified along the waterfront, primarily andwith the decommissioning of the railway became the largest unprogrammed To recognize the significant role Barrie’s waterfront has played, and will continue pertainingto untapped development potential and boat-related activity; unattractive park along Barrie’s waterfront. The primary destination drawing people into to play, in shaping the City, a Waterfront Master Plan was prepared in 2000. built form and a lack of definition in the public spaces; and the need for improved this area is the multi-use path and the Southshore Community Centre, which Building on nine principles for a healthy and sustainable waterfront borrowed connectivitybetween the waterfront, the Bay and downtown. The vision flowing from is very well used as an event space, and home to Barrie’s rowing and canoe from a Royal Commission report on the “Future of Toronto’s Waterfront”, this analysis was to “transform Downtown Barrie and its waterfront into a highly clubs. Adjacent uses are primarily low rise residential. This area is envisioned to Barrie’s existing Waterfront Master Plan focuses primarily on the environmental desirable place to live, work, enjoy and visit”, with an emphasis on the need to include a new “Central Park” serving the City. and recreational function of the waterfront. The principles that underline the generate activity and vitality – to draw people and investment in. Master Plan emphasize that the waterfront should be clean, green, connected, 5. (Minet’s Point Road to Cox Mill Road) – This southeastern section of the In support of this vision, eight goals were established, including to build upon existing open, accessible, usable, mixed use, affordable and attractive. waterfront is primarily characterized by low-rise residential uses, centred on heritage assets, achieve high quality urban design, better balance transportation an open space known as “The Gables”. This area also includes the private In addition to establishing guiding principles, the Waterfront Master Plan includes modes (including walking, cycling and transit), to encourage mixed uses, and to BrentwoodMarina. Since much of this Planning Area is in private ownership, the detailed recommendations for improvements in six Planning Areas identified protect a publicly accessible waterfront that is addressed by adjacent built form and Master Plan focuses on development-related initiatives for improving the area along the shores of Kempenfelt Bay (Figure 2). The detailed recommendations provides year-round activities for all types of users. A set of design principles were (e.g.parkland dedication, erosion control by-law, etc.), alongside land acquisition of the Master Plan, some of which have been implemented since the Plan’s also established to achieve these goals, along with a Plan (Figure 3). Features of to bring waterfront lands into public ownership to serve the recreational needs adoption, primarily identify ways to improve: the Plan include: of residents. • the physical condition of the parks system and associated waterfront • Transforming Heritage Park into an open space island that is accessible 6. (Coxmill Road to City Limits) – When the Master Plan was prepared, this area facilities; from the mainland by pedestrian bridges and the Mulcaster Pier. This would was on the verge of being developed, primarily with single family residential create a new shallow basin between the mainland and the island that could • the capacity and connectivity of the street network; and, uses, which has occurred since that time. The City’s priorities for this area be used for various activities, such as ice skating and boat rides. • the ecological integrity of aquatic habitats. include acquiring parkland to provide a publicly accessible waterfront. • On the mainland, the Master Plan calls for: The recommendations also address private development opportunities, the Finally, the Master Plan also identified the need for special events strategy and relocation of some existing waterfront uses, and how to better accommodate recommendedagainst expanding concessions along the waterfront, particularly on the volume of users attracted to the waterfront, particularly as the City grows City-owned lands. and the population along the waterfront increases
The six Planning Areas identified in the Waterfront Master Plan include:
1. A & B (The North Shore) – The Northshore is a primarily low-rise residential area that includes Kempenfelt Park, Johnson Beach, and St. Vincent Park. The waterfront in this area is envisioned as a primarily naturalized, recreational space.
2. (Downtown/Heritage Park and Memorial Square/Marina) – This area of the waterfront overlaps with Barrie’s historical downtown commercial area, and is home to numerous destinations, including Heritage Park, Memorial Square and the Marina. Improvements for this section are focused on environmental restoration,stormwater management, marina expansion, and the redevelopment of key public spaces. Mixed use development is envisioned to occur at the interface between the waterfront and downtown in this area.
3. (Westshore) - The primary feature of the Westshore is Centennial Park, which includes a popular sandy beach, the Tiffin boat launch, and a busy multi-use Figure 2. Waterfront Master Plan (2000) Planning Areas Figure 3. Downtown Commercial Master Plan, 2006
BARRIE WATERFRONT + MARINA STRATEGIC PLAN - ATTACHMENTS - BACKGROUND REVIEW E3 • a wider waterfront promenade; • a multi-tiered parking structure at 31 Collier Street; Allandale Community Improvement Plan, 2007 • a new community centre at the foot of Mulcaster Street; • the relocation and consolidation of parking along the waterfront; In preparation of the Allandale Community Improvement Plan (CIP), the City • mews-style commercial development between Mulcaster and Memorial • entrance features at strategic locations to the downtown and along the completed a detailed Background Report (March 2006) and a Revitalization Plan waterfront; Square; (September2006), which set the basis for the CIP. The Revitalization Plan in particular • new residential development that maintains access to the waterfront; and, set the vision and principles for the Allandale area, and provided recommendations • residentialdevelopment with street-related retail between Memorial Square for the land use, urban design, transportation, servicing, promotion, development and Bayfield Street; and, • restricting building heights (to 5-storeys) adjacent to the waterfront and the opportunities and the financial incentives incorporated into the final CIP. The vision historic mainstreets of downtown. for Allandale is that is become a revitalized, mixed use neighbourhood that reflects • definedcharacters for the main streets (e.g. Bayfield as a gateway, Dunlop as its unique railway heritage, and is well connected to the downtown, waterfront and the commercial main street, Mulcaster as a “living street” that can be closed to TheNext Wave included a figure depicting proposed and potential development sites adjacent communities. traffic for special events, etc.). (Figure4), which further identified specific residential, commercial, retail and cultural development opportunities. The Allandale CIP area covers section of the westshore and southsore, centering • MemorialSquare is envisioned as the downtown’s premiere public gathering on the intersection of Tiffin Street and Lakeshore Drive. The purpose of the CIP is: place with an outdoor theatre. Beyondtheses specific development opportunities along the waterfront and adjacent lands, the Next Wave recommended the City generally improve the quality of street To create a favourable business climate, stimulate new investment and encourage This Plan reinforced the need to address the ongoing revitalization of the City’s furnitureand landscaping, consider a shuttle bus from Centennial Park to downtown, the redevelopment, rehabilitation, or improvement of the “Allandale Centre downtownand the need to bring year round activity and animation to the core through protecting view corridors and physical linkages to the waterfront, and designate the Community Improvement Project Area”. The Allandale Centre Revitalization Plan heightened investment in the public realm, a high quality built form environment and floodway of Bunkers Creek as an Environmental Protection Area. The Next Wave also provides the vision and guiding principles for the ultimate redevelopment within the the attraction of key investment. includessome direction for marketing and special events, including the development Allandale Centre Community Improvement Project Area. of an information marquee along the waterfront trail at the foot of Bayfield Street, and The specific objectives include: Downtown Barrie: The Next Wave (a.k.a The building on the success of Kempenfest, which takes place on the City’s waterfront. 1. To revitalize and stimulate Commercial activity in the Allandale Centre Next Wave Revitalization Plan), 2004 CommunityImprovement Project Area by providing for diversity of commercial, residential and cultural uses. In 2004, the City released The Next Wave Revitalization Plan for the downtown and waterfront, including lands within the historic core bound by Dunlop Street and 2. To promote residential intensification within the Community Improvement Bradford Street, two major thoroughfares. Like the other planning documents, the Project Area. Revitalization Plan recognizes that “the waterfront is the City’s greatest asset and 3. To redevelop the Allandale Station as a signature site in the Barrie skyline. thelinkage between the downtown and waterfront is paramount” (page 6, Founding Principles). Moreover, the vision statement for the downtown emphasizes the 4. To address the visual impact of buildings along street frontages and key areas importance of the waterfront, as follows: facing the waterfront parkland system.
To create a downtown that reflects the City of Barrie’s role as Central Ontario’s 5. To reduce visual clutter, signage and advertising. premiere waterfront community, offering the urban amenities of a regional centre, in 6. To retain and enhance the existing building stock that reflects the historic or anenvironmental setting that showcases Kempenfelt Bay, making Downtown Barrie heritage character of the area. theCity’s address of choice to live, do business, and enjoy social and cultural activities. The financial incentives provided in the CIP to achieve these objectives include Building on this vision and the founding principles, the Next Wave Plan provides general and specific types of grants and loans, such as a tax increment based grant, specific ideas for the physical development of the downtown and waterfront, including: grants for application and permit fees, façade improvement loan, and renovation • anoutdoor performance venue and improved landscaping in Memorial Square; loan. Eligibility requirements for accessing these incentives are provided in the CIP.
• therealignment of Lakeshore Drive with Toronto and Simcoe Street (using the A subsequent Progress Report has found that a total of five applications had been former rail corridor) to create a space for a new signature public building such received to access the Allandale CIP incentives. Of these, 98% were for loans as a performance arts centre, or some other cultural use; (primarily for façade and renovations totaling $59,000), and 2% were for grants • developing 2 Dunlop Street for a signature project; (building permit fee and demolition and tipping fee grants, totaling less than $2,000). The Progress Report concluded that the incentive programs have had a positive • relocatingthe Sea Cadets facility and developing a waterfront gathering place/ Excerpt from Downtown Barrie, The Next Wave, 2004 - Figure 1 effect and are consistent with the City’s goals for revitalizing the area. restaurant in its place; Figure 4. Proposed and Potential Development Sites
E4 BARRIE WATERFRONT + MARINA STRATEGIC PLAN - ATTACHMENTS - BACKGROUND REVIEW Marina Study Presentation, Strus & Associates “waterfront core” – from Heritage Park to the Tiffin Boat Launch, and that the parking supply outside of this area will be sufficient into the future. Within the “waterfront Other Information Inc., 2010 core”, the Study identified a shortfall of 300 spaces, resulting from the loss of parkingspaces due to the Lakeshore realignment and future redevelopment, which In 2010, Strus & Associates undertook a study of the Barrie Marina that outlined was expected to lead to an increase in population by 40 to 45% within 10 years, and existing conditions, the findings of a SWOT analysis, and three options for the Sea Cadets Relocation, 2002 to 2004 80 to 95% within 20 years. Although the study focused on waterfront users and not future of the Marina. The Study documented existing assets (boat slips, docks, boat local employees or commuters accessing the Barrie Transit Terminal, it did asses The Sea Cadets building is currently located near Heritage Park, in proximity to launches, buildings) and found that the Barrie Marina primarily serves residents that these two groups of users only accounted for 2% of all existing users, but did Barrie’s downtown, and is run by the Navy League of Canada (NLC), which teaches and does not cater to transient boaters (346 seasonal slips for residents versus 32 not speak to how this share may change as the area redevelops over time. youth boating skills. The lands are owned by the City, but currently under a 100- slips for transient boaters). The slip fees were found to be lower that those found year lease to the NLC Ontario-branch (with a sub-lease to the Barrie Sea Cadets), elsewhere, including Mississauga, Parry Sound, Kingston and Orillia. The Study TheParking Study concluded with a set of recommendations including, that the City: which expires in 2047. The Sea Cadets building is considered a sub-optimal use also determined that the design and condition of the facilities was poor and that the of prime waterfront real estate that the City would like to see redeveloped as a Marina lacked parking and competitive amenities (e.g. wifi and laundry). At a higher • Increase the parking supply within the waterfront core area by 300 spaces; gathering place or restaurant. The site has highly desirable views and access to the level, the key issues that were identified include: • Eliminate free parking within the waterfront core area, and introduce a new waterfront, but the existing building does not contribute to the achievement of high fee of $1.00 per hour; • a lack of an administrative structure for the waterfront (i.e. no single person quality design along the waterfront. or department is responsible for the waterfront); • Limit parking durations within the core waterfront area to 4 to 5 hours to discourage commuters from using these spaces; The City has considered the relocation of the Sea Cadets in the past, and underwent • a lack of consideration for the waterfront and marina in key planning an unsuccessful negotiation and public consultation process in 2002-2003 to move • Increase parking fines and enforcement; and documents(e.g. the Waterfront Master Plan focuses on parks; the Downtown the group to Tyndale Park. Subsequent to that attempt, confidential documents Commercial Master Plan does not cover the entire Marina; and the Marina is • Establish a Waterfront Parking Reserve Fund to finance additional parking dated back to 2004 identified the following issues related to identifying a new outside of the Allandale CIP); and, within the area and non-parking waterfront improvements. location for the Sea Cadets:
• potentialimpacts associated with impending development in proximity to the • Lack of clarity on who the City should be negotiating with (the NLC Ontario Marina, if necessary coordination does not occur. Gables Park Master Plan Branch, or the Barrie Sea Cadets Trustees); In addition to recommending a new administrative structure (that included a City • The cost to the City of relocating the Sea Cadets, and the fairness of providing Gables Park is located in the southeastern portion of the waterfront (in Waterfront Centre Revitalization Strategic Committee made up of relevant directors and a waterfront property and facilities for this relatively small group; Planning Area 5), in an otherwise residential area. The Gables Park Master Plan strong role for the Planning Department), the Marina Study proposed three options was originally prepared in 2002 (adopted in 2003), but was then revised in 2008 in • NIMBYism, depending on the proposed location. for the future of the Barrie Marina: responseto the findings of a biological inventory in support of woodlot management, Six potential sites for the relocation of the Sea Cadets were identified, all of which 1. Status Quo, with basic, minor improvements. The Marina would maintain and the need to provide servicing to the park’s washroom facilities. The Master Plan are in the southeastern section of the waterfront. Other areas of the waterfront are mostly exclusive for residents. includes two picnic areas, a beach, walking trails through the woodlot and meadow, parking facilities, and vehicular access from Tollendal Mill Road, as well as fencing considered too heavily used to be able to optimally accommodate the Sea Cadets. 2. Moderate Change-Shift from Seasonal to Transient Focus. The Marina would along adjacent residences. The six proposed sites include the vicinity of the White Oaks road allowance, Minets becomean integral component of the waterfront and downtown intensification, Point, Tyndale Park, Dock Road properties, Land Purchase, and Melia Property. serving both resident and transient boaters. North Shore Trail Master Plan, 2002 3. Substantial Change. The Marina would actively support Barrie’s vision of Barrie’s Historic Locations Plaques being “Central Ontario’s Premiere Waterfront Community”. It would become The North Shore Trail Master Plan conceptually identified the alignment of the trail, a destination for tourists and boaters, experience significant expansion, and runningfor 3 km from Heritage Park (in the downtown), to Penetanguishene Road at Barrie’sHistoric Location Plaques are located along the waterfront and commemorate foster a real waterfront spirit – 12 months of the year. the City’s limits, where it connects to the Lake County Oro-Medonte Rail Trail. The six cultural heritage features, including: Master Plan includes several segments, including: • Allandale Train Station; • A paved multi-use trail along the former rail corridor (now constructed); Barrie Waterfront Parking Study, 2005 • Ice Harvesting at the Tiffin Boat Launch; • Aboardwalk at the water’s edge from St. Vincent Park eastward to Vancouver The Barrie Waterfront Parking Study (2005), included a review of existing Street; • The Barrie Carriage Company at Centennial Park; conditions (parking supply, rates and demand), an analysis of future demand and • An on-street signed route along Kempenfelt Drive; and, supply, alternative parking strategies, a financial analysis, as well as stakeholder • The Barrie Tanning Company at the Marina; consultation. The study identified that the greatest need for parking is within the • Three trailhead kiosks (at Heritage Park, Vancouver Street and Johnson’s Beach).
BARRIE WATERFRONT + MARINA STRATEGIC PLAN - ATTACHMENTS - BACKGROUND REVIEW E5 • Memorial Square; and, illustrations and historical accounts spanning fro the ice ages to the present. The project is supported by local parks staff, but requires council approval. Kinzie • Barrie Gas Works at the North Shore Trail. presented his proposal to council in February 2012. The plaques are sponsored by the Barrie Historical Association in cooperation with the City of Barrie. Downtown University Campus B. Bruton. (2012, February 14). Council has a land strategy for university campus. The Barrie Examiner. Barrie Examiner Articles: Recent Events In February 2012, Barrie’s city council approved a strategy for facilitating the Boat Slip Fees at the Barrie Marina development of a new downtown campus. The strategy directs staff to negotiate the purchase of six properties, and to develop a financing plan and master plan. The B. Bruton. (2012, March 6). Boat slip auction sinks. The Barrie Examiner. development of a downtown campus is part of Barrie council’s 2010-2014 Strategic This article addresses the City of Barrie’s attempts to review current boat slip fees Plan, and is strongly supported by the Mayor. for its Marina. There are differing views on whether the City should be subsidizing Although the Province will determine the final location of any new campus (it is the boat slip fees to allow users of different economic means to use the Marina, or looking to establish three new campuses), the City of Barrie is eager to get ahead whetherthe City should pursue full-cost recovery for all operating, maintenance and of the game in the hopes of securing a better price for the land before values are capital expenses associated with this city-owned facility. affected by the Province’s decision. Since Barrie is one of the few urban growth One councilor (Alex Nuttall) attempted auction off three boat slips in an attempt centres designated by the Province that does not have a university campus, the to establish fair market value as a basis for revised boat slip fees, however, this City feels it is a strong candidate. Laurentian University has already identified its method (and the overall intent) was questioned by some members of the public. requirements for a downtown campus, which include a 162,000 square-feet facility Instead, the City is now waiting for a report, to be delivered in June 2012, that on 20 acres of land, with a private student residence, 500 on-site parking spaces for outlines a full-cost recovery strategy for the Marina. 3,000students and 140 faculty and staff. The university estimates the campus would generate $45 million in annual economic activity for the City, along with $2.2 million Table 3. Seasonal Boat Slip Fees in revenue. The Bradford Street area is a strong contender for the new campus.
Fee Vessel Size Pier A, B,C, D $1,015 up to 16 feet SUMMARY $1,171 17 to 20 feet $1,415 21 to 24 feet A review of multiple City of Barrie planning documents revealed that the waterfront Pier E, F, G, H, I, J, K is viewed as one of the City’s key assets and attractions, and that strengthening the connection between downtown and the waterfront is an important goal, along $1,293 17 to 20 feet with enhancing the design quality and sense of place of these two central features $1,538 21 to 24 feet of the City. A consistent vision for the waterfront is carried through numerous $1,787 25 to 28 feet plans,but implementation appears to progress incrementally. Impending pressures $2,032 29 to 32 feet on the waterfront resulting from growth and intensification emphasize the need $2,277 33 to 35 feet for coordinated and proactive improvements to the diverse array of places found along Barrie’s waterfront, each of which have unique needs and opportunities. An Discover Barrie Walking Trail extensivelist of potential development opportunities and public space improvements L. Holdforth. (2012, February 14). Former mayor hot on the trail of history. The have been identified in numerous documents, and a strategic plan is needed to Barrie Examiner. evaluate these ideas and move forward with waterfront redevelopment.
A former mayor of Barrie, Willard Kinzie, is championing the development of a new interpretive walking trail along Kempenfelt Bay from the Southshore Community Centre to Minets Point. The “Discover Barrie” walking trail concept has been prepared in partnership with the Barrie Kiwanis Club and would include photos,
E6 BARRIE WATERFRONT + MARINA STRATEGIC PLAN - ATTACHMENTS - BACKGROUND REVIEW F: PUBLIC INFORMATION CENTRE PANELS June 2012
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