HomeMy WebLinkAboutPD-8-94Meeting: General Purpose and Administration Committee Fiie1�
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Monday, January 17, 1994 Res.
Report #: PD -8 -94 File #: PLN 15.11 Sy -Law #
Subject: WATERFRONT TRAIL
FILE: PLN 15.11
Recommendations:
It is respectfully recommended that the General Purpose and
Administration Committee recommend to Council the following:
1. THAT Report PD -8 -94 be received;
2. THAT interim and ultimate Provincial trail alignments be
endorsed between the Oshawa /Townline and Bond Head, save and
except for the trail between Bennett Road and Cobbledick Road
(Section 9);
3. THAT Staff's submission for funding in 1994 to the Waterfront
Regeneration Trust be endorsed;
4. THAT the sum of $60,000, be allocated from the Public Works
Lot Levy Reserve Account 5001 -36 -X and $4,790. from the
Planning Department 1994 Legal Fee Account 7702 -X -242 as the
Municipality's contribution for implementation of the
Clarington's Interim Waterfront Trail;
5. THAT Staff be directed to provide the estimated maintenance
costs as part of the 1994 budget discussions exclusive of
budget guidelines;
6. THAT Staff be authorized to negotiate with private landowners,
Ontario Hydro, Central Lake Ontario Conservation Authority,
Ministry of Natural Resources, and Management Secretariat
Board to secure access agreements /easements;
7. THAT the Waterfront Regeneration Trust, the Ministry of
Natural Resources, Ontario Hydro, Management Secretariat
Board, Central Lake Ontario Conservation Authority and
Ganaraska Region Conservation Authority be forwarded a copy of
this report and Council's decision.
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530
R`R
PA-R EC t
- N PRIMED Cry RECYCLED GAPER
PAGE 2
1. BACKGROUND:
1.1 In June 1993, representatives from the Community Services and
Planning and Development Departments met with a representative
from the Waterfront Regeneration Trust to discuss the
Provincial Waterfront Trail and the potential for funding for
implementation of an interim alignment by September, 1994.
The representative informed staff that the Trust would be
preparing an application to the Provincial Treasury Board for
funding of 1994 Waterfront projects across the Greater Toronto
Bio- Region (GTB). The Trust required each municipality to
submit a proposal indicating the number, type and the cost of
each project. The 'proposal would form part of their
application. Upon reviewing each submission, funding would be
allocated to municipalities subject to Council's endorsement
of the waterfront trail and greenway concept and a commitment
to a municipal contribution.
1.2 On November 15, 1993 Mr. David Crombie, Commissioner of the
Waterfront Regeneration Trust made a presentation to the
General Purpose and Administration Committee on the function
and mandate of the Trust. Mr. Crombie shared the Provincial
vision of a waterfront trail and a greenway that would link
Burlington Bay to the Trent River along the Greater Toronto
Bio- Region shoreline.
1.3 Also at that meeting, the Committee received the Recommended
Land Use Strategy Report prepared by Bird and Hale Consultants
Limited. Committee endorsed the Waterfront Trail and Greenway
Concept and directed staff to prepare a report on an interim
and ultimate trail alignment for Clarington.
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531
PAGE 3
1.4 Staff have prepared this report in keeping with the Trust's
requirement for funding and with Committee's direction. This
report will discuss the following:
• a preferred interim and ultimate waterfront trail
alignment for Clarington;
• phasing of trail development;
• implementing the interim trail;
• submission to the Regeneration Trust; and
• the pros and cons of the waterfront trail and it's
ramifications from the municipal perspective.
Attachment 1(a) and 1(b) identify both the interim and
ultimate trail routes from Darlington Provincial Park to Bond
Head.
2. THE ULTIMATE TRAIL ALIGNMENT
The ultimate waterfront trail alignment has been identified in
the Bird and Hale Report. The trail is set in a greenway
corridor, adjacent to the lakeshore from Darlington Provincial
Park to Hope Township. The corridor ranges from 15 metres to
100 metres in width, necessary to offset any future losses
caused by erosion and allows for creative design. The
majority of waterfront land in Clarington is held in private
ownership. In order to secure lands to accommodate the trail,
lands would have to be acquired through outright purchase or
through the development of lands whereby the municipality
could require the dedication of lands for trail development in
addition to the 5% parkland dedication.
Darlington Provincial Park offers many passive and
recreational activities, including its own trail network.
Moving eastward the trail follows the shoreline across lands
currently held in private ownership. Access agreements/
easements or land acquisition will be required. ...4
532
REPORT NO.: PD -8 -94
PAGE 4
The trail does not follow the lakeshore in the areas owned by
Ontario Hydro Is Darlington Nuclear Generation Station (DGS) or
St. Marys Cement for safety and security reasons.
The ultimate trail follows a similar alignment to the interim
trail along the South Service Road to Waverley Road.
Provisions may be made to accommodate the trail users on a
separate surface either within the municipality's road
allowance or on Ontario Hydro lands.
The ultimate alignment travels south on Waverley Road to Cedar
Crest Beach Road. With a bridge over the West Side Creek the
trail would continue eastward along Cove Road. The lands at
the mouth of the creek and Cove Road are private property,
access agreements /easements will be required.
The trail travels north on West Beach Road around the
Bowmanville Marsh to Bowmanville Harbour Conservation Area,
utilizing Port Darlington Road to reach the lakeshore at East
Beach.
Movement eastward from Port Darlington to the Wilmot Creek
would be adjacent to the lakeshore to Bennett Road. Access
agreements/ easements may be required, or lands may be acquired
through the dedication to the municipality through the
development of this area. Policy direction for dedication of
lands for the trail will be established in the new Official
Plan.
The ultimate trail between Bennett Road and the east limit of
the Wilmot Creek Retirement Community will not be finalized at
this time. Negotiations will have to take place with several
private landowners and government agencies. In any event,
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533
PAGE 5
Staff will adhere to Council's direction not to impose the
ultimate trail along that portion of the shoreline abutting
the existing homes within Wilmot Creek Retirement Community.
Upon conclusion of all negotiations, Staff will report back to
Council for approval of an'ultimate trail through this area.
Moving easterly from Wilmot Creek Retirement Community, the
ultimate trail will be adjacent to the lakeshore with bridge
crossing over Wilmot Creek and then on lands subject to
development applications from Bramalea Limited. Crossing of
the Graham Creek by foot bridge will be north of the Port of
Newcastle Marina to tablelands east of the harbour mouth where
the Bond Head Parkette can be reached.
From Bond Head easterly to the east limit of the Municipality,
the determination of the permanent trail alignment would be
placed on hold due to potential problems associated with
Lakeshore Road as well as the issue of pesticides recently
raised by local farmers.
3. THE INTERIM TRAIL
Due to the fact that the ultimate trail will take many years
to implement, the Regeneration Trust encourages the
municipality to establish interim trail and wherever possible,
to have the interim trail alignment follow as close as
possible to the ultimate trail alignment.
The interim trail is therefore intended to be implemented in
a relatively short timeframe. It utilizes existing road
allowances, hydro corridors and areas where few access
agreements/ easements with private landowners are required. As
such, the alignment does not follow the shoreline for the most
part, although visual access to the water is maintained. The
...6
534
trail connects key areas identified in Bird and Hale Report
for public use, Darlington Provincial Park, Bowmanville
Harbour Conservation Area, Wilmot Creek and Bond Head
Parkette. The trail is approximately 3 metres in width
sufficient to accommodate pedestrians and cyclists.
The majority of the trail from the Provincial Park to Waverley
Road is along existing road allowances namely the South
Service Road. A portion travels south along Osbourne Road and
north on Solina Road. The trail will be constructed adjacent
to the Ontario Hydro Soccer Pitches west of Darlington
Generating Station. From Solina Road to Waverley Road the
interim trail will be located within the existing road
allowance.
The interim route utilizes a hydro corridor from Waverley Road
to the West Beach Road north of lands owned by St. Marys
Cement Company. The trail continues to CLOCA's Bowmanville
Harbour Conservation Area, and connects to Port Darlington
Road. The trail reaches the lakeshore for the first time since
Darlington Provincial Park. The trail continues on East Beach
Road and traversing private land holding to Lambs Road, where
it would connect to Bennett Road via the South Service Road.
The interim trail would be discontinuous between Bennett Road
and Cobbledick Road for the same reasons cited in the
discussion under Section 2 of this Report. East of this
location the trail is on the Hydro corridor to Toronto Street.
A bridge is required over the Wilmot Creek. Movement eastward
is via hydro corridor to Baldwin Street which connects to Mill
Street. Mill Street will be used for the trail which will end
at the Bond Head Parkette. Beyond Bond Head, there will not
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be an interim trail at this time due to several problems
including use of pesticide by local farmers and potential on
road hazards associated with Lakeshore Road.
4. PHASING OF THE WATERFRONT TRAIL
4.1 The ultimate and interim waterfront trail for Clarington
traverses over 31 kilometres of shoreline, from Oshawa
Townline to Hope Township. The ultimate Trail is intended to
follow the lakeshore, taking advantage of areas of natural and
cultural significance, thereby creating a trail longer than 31
kilometres. The ultimate trail would be implemented over many
decades through planning, land acquisition and stewardship.
The interim trail would be achieved within a shorter
timeframe, utilizing public road allowances, lands in public
ownership and in some cases, will require access
agreements /easements with private landowners.
4.2 Staff is cognizant of the fact that creating a complete trail
across the Clarington waterfront is a vision that must be
implemented over many years. In this regard, the development
of a waterfront trail and greenway has been prioritized
according to the following phases.
4.2.1 Phase One
This involves implementing the interim trail in 1994 for
the area between Port Darlington and Bond Head waterfront
areas. This priority is in keeping with the Region
Official Plan objective of linking the Bowmanville and
Newcastle Village urban areas. Both of these communities
are well established and each are subject to secondary
planning exercises which will set the policy framework to
create unique, attractive living areas enhanced by the
waterfront setting. ...8
X36
REPORT NO.: PD -8 -94
PAGE 8
4.2.2 Phase Two
This also involves implementing the interim trail in 1994
between Darlington Provincial Park to Port Darlington
Waterfront Area. This route benefits from Darlington
Provincial Park as a large focal node and when completed,
will provide a continuous trail link from the City of
Oshawa to the interim trail established in Phase One.
4.2.3 Phase Three
This phase would include establishment of focal nodes
along the trails. Focal nodes are integral to the
development of a Waterfront Trail and Greenway network.
A number of existing and proposed recreational /tourism
nodes have been identified in the Bird and Hale Report.
No specific timing is proposed for this Phase, the
implementation of which will be subject to a separate
report in the future to examine such matters as the type
of facilities within each node, the municipality's
financial ability to undertake the capital works as well
as to provide maintenance services to future facilities
planned for the focal nodes.
4.2.4 Phase Four
This phase works towards developing an ultimate trail
between Darlington Provincial Park and Bond Head.
Implementation of this Phase and Phase Five will also be
subject to a separate report to Council in future years.
4.2.5 Phase Five
This last phase would deal with either the interim or the
ultimate trail alignment or both for the area east of
Bond Head.
537
REPORT NO.: PD -8 -94
PAGE 9
5. IMPLEMENTATION OF AN INTERIM TRAIL (Phases One and Two)
5.1 Staff have established a Waterfront Greenway Working Group
comprised of Staff members from Planning and Development
Department, Community Services Department and Public Works
Department. The Working Group is working co- operatively to
oversee the interim trail implementation. Each department has
agreed to be responsible for certain aspects of the trail.
• Planning and Development will be responsible for Planning
the interim and ultimate trail alignments, including
negotiations for securing easements;
• Public Works will be responsible for overseeing the Trail
construction and signage installation;
• Community Services will be responsible for trail
maintenance as well as any future enhancement or
improvement to the trail including developing focal nodes
along the trail.
5.2 Some of the immediate tasks may include but are not limited to
the following:
• ensuring the interim trail is constructed;
• negotiations with public agencies and private landowners
with respect to securing access via easement agreement or
other mechanism; and
• seek sponsorship for interpretive signage for certain
areas.
5.3 The ability to gain access over private lands is critical for
creating a continuous trail. Approximately 20% of the trail is
recommended on Ontario Hydro lands. Access agreements with
Ontario Hydro will be required for the use of Hydro Corridors
in Phases 1 & 2. Although Ontario Hydro has expressed a
...10
PAGE 10
willingness to assist in trail implementation with the Trust,
the Municipality will need to enter into formal discussions
with Hydro to secure some form of access agreement /easement.
Other parties which will need to be approached for access
agreements /easements are noted below:
• Central Lake Ontario Conservation Authority;
• Haas Waisglass and Shoychet;
• Rice Capital Group; and
• Ministry of Natural Resources and Management Secretariat
Board.
5.4 At the Council meeting of March 22, 1993, Council resolved
that it would not support the waterfront trail traversing the
Wilmot Creek Development but would support a route north of
the Wilmot Creek Development.
The interim trail could be aligned in such manner to utilize
the Hydro corridor and the South Service Road. However, the
railway is a major obstacle to making the connection to the
hydro corridor. A pedestrian bridge could be constructed but
at considerable cost to the municipality. As such, Staff have
deleted this section of the trail from the Municipality's
submission to the Trust. Staff will explore a number of
options, discuss them with Rice Capital and report back to
Council at a later date.
6. SUBMISSION TO THE WATERFRONT REGENERATION TRUST FOR 1994
CAPITAL FUNDING
6.1 The Regeneration Trust has been encouraging municipalities to
apply for Provincial funding to implement the waterfront
trail. Subsequent to discussion with Staff from the
...11
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Regeneration Trust, staff has made preliminary submission to
the Trust based on the implementation of an interim trail from
Darlington Provincial Park to Bond Head as identified in
Phases 1 and 2.
6.2 In order to comply with the Trust prerequisites for funding,
the municipality's submission must specify job creation in
person weeks of employment, endorsement of the Greenway
Concept and Council's commitment to implement a continuous
Waterfront Trail, and the amount of municipality's
contribution. The Trust suggested that the municipality's
contribution could be in the form of labour cost for trail
construction and sign installation.
6.3 The Waterfront Regeneration Trust received staff's preliminary
submission and Staff have met with Trust representatives to
further discuss the proposal. The submission will form a part
of the Trust's overall submission to Provincial Treasury
Board. To date the Trust has received 48 submissions from
municipalities and other agencies at an estimated value of $26
million dollars. Apparently, there is only limited funding
available. Therefore, some projects may not be approved.
Staff is optimistic that our proposal will receive favourable
consideration.
6.4 The submission made by staff focused on the construction of
the interim trail between Darlington Provincial Park and Bond
Head. This trail has been designed based on minimum
standards. The majority of the trail is on existing road
allowances where the road shoulder will be used. Where the
trail is off road, only a gravel or recycled asphalt surface
is recommended. Staff have also made little provisions for
landscaping, furniture and waste receptacles. Overtime the
...12
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PAGE 12
municipality would focus on upgrading portions of the interim
trail that form the ultimate trail. The capital cost
breakdown for implementing both Phases 1 and 2 areas is
provided in the table below.
6.5 The Municipality of Clarington has requested 75% subsidy for
the Phase One and a 100% subsidy for Phase Two. The latter is
not considered a priority to the municipality at this time and
therefore, a 100% subsidy is requested.
6.6 The $64,790. municipal share will be funded from the following
accounts:
• $60,000 - from Public Works Lot Levy Reserve Account
5001 -36 -X as related to portion of the overall
construction cost.
...13
Phase 1 ( Bowmanville
to Bond Head)
Phase 2 (Darlington
Provincial Park to
Bowmanville)
Total
Signage
$ 9,055.
$ 7,630.
$ 16,685.
Trail
44,915.
42,805.
87,720.
Bridges
100,000.
0.
100,000.
Park Development
30,000.
0.
30,000.
Professional Fees
27,596.
7,565.
35,161.
Contingency
27,596.
7,565.
35,161.
SUBTOTAL
$239,162.
$65,566.
$304,727.
Legal Fees
20,000.
20,000.
GRAND TOTAL
$259,162.
$65,566.
$324,727.
Municipal Share
64,790.
0.
$ 64,790.
Provincial Share
$194,372.
$65,566.
$259,938.
6.5 The Municipality of Clarington has requested 75% subsidy for
the Phase One and a 100% subsidy for Phase Two. The latter is
not considered a priority to the municipality at this time and
therefore, a 100% subsidy is requested.
6.6 The $64,790. municipal share will be funded from the following
accounts:
• $60,000 - from Public Works Lot Levy Reserve Account
5001 -36 -X as related to portion of the overall
construction cost.
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REPORT NO.: PD -8 -94
PAGE 13
® $ 4,790. - from Planning Department Legal Fees Account
7702 -X -242 as related to portion of overall legal cost
related to easement agreements.
6.7 Where access /easement agreements are required to connect the
trail over public or private lands, the cost of securing the
easement (other than legal cost) will be absorbed in the
Contingency Account. The cost would not be substantial since
most of the easements will be on provincial government or
Ontario Hydro lands.
7. RAMIFICATIONS OF A WATERFRONT TRAIL
7.1 While there are certain benefits associated with a waterfront
trail, there are several ramifications that Council should
clearly understand prior to approving the recommendations
contained in this Report. In the event Council does not wish
to endorse the waterfront trail or implement the interim
trail, this Report should be received for information and all
affected parties be so advised.
7.2 The Positives
7.2.1 Endorsement of the waterfront trail represents Council's
commitment in working in cooperation with the
Regeneration 'Trust to assist the Province in bringing
into fruition of a continuous trail from Burlington to
Trent River. It also establishes and confirms Council's
vision to take a giant step forward in bringing the
waterfront back to the people. In addition, a waterfront
trail would significantly enhance future recreational and
tourism opportunities along the waterfront. These were
some of the reasons that the Municipality has taken the
advantage of Provincial funding to launch a comprehensive
waterfront study almost two years ago. The waterfront
trail is a major component of the study.
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PAGE 14
7.2.2 Recognizing the Municipality may not have the necessary
funding at this time to implement the interim trail, the
Regeneration Trust encourages municipalities to apply for
capital funding which was available in 1993, will be
available in 1994 and possibly in 1995. For example,
City of Oshawa received $210,000. funding from the
Regeneration Trust in 1993 for trail construction and
related works. Given the short term nature of the
Provincial Funding Commitment, this may be the only
opportunity for the Municipality to take advantage of
Provincial assistance.
7.2.3 For fiscal year 1994, we understand the Central Lake
Ontario Conservation Authority and the Region of Durham
have made applications to the Regeneration Trust for
funding to do the following works.
The Central Lake Ontario Conservation Authority's
application involves the construction of a safety shelter
on the Bowmanville Harbour Conservation Area. The
shelter would be adjacent to the off -road trail (see
trail Section 6) and would compliment the existing uses
in the area. The shelter would be 180 square metres in
size and include electrical hook up for lighting and
service use, picnic tables and barbecue grills. The cost
of the shelter is estimated at $40,000.00. The Authority
has requested 50% contribution from the Province.
The Regional Works Department is intending to relocate
the existing Graham Creek Water Pollution Control Plant
from the north end of lands owned by Bramalea Limited to
a location adjacent to the Wilmot Creek. The Works
...15
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PAGE 15
Department has incorporated a trail and landscaping into
the site design of the new Water Pollution Control Plant,
at a cost of $88,000.00. The Region did not specify how
much they expect from the Province.
7.2.4 Given the fact that both Central Lake Ontario
Conservation Authority and the Region are applying for
funding to implement trail and trail related projects,
it would be logical for the Municipality likewise to
apply for funding to implement the interim trail so that
all agencies can get maximum combined benefits from all
the projects. In addition, endorsement by Council to
implement the interim trail would definitely help both
the Central Lake Ontario Conservation Authority's and the
Region's projects to receive favourable consideration by
the Trust.
7.2.5 In discussion with staff from the Regeneration Trust, we
understand that Pickering, Ajax, Whitby, and Oshawa have
all submitted applications for funding to implement their
trails and related work for 1994.
7.3 The Negatives
7.3.1 Notwithstanding the fact that Council has endorsed the
concept of the Waterfront Trail and Greenway, Council
should be aware that once it commences implementation of
the interim trail for the first two sections from
Darlington Provincial Park to Bond Head (excluding the
Wilmot Creek Community at this time), it could be
construed as commitment by this Council and future
Councils to complete the entire trail with no guarantee
of any future financial assistance from the Province.
...16
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PAGE 16
This is obviously a critical decision making point
whereby Council must decide now whether or not it should
be involved in implementing a waterfront trail.
7.3.2 While the majority of the funding for capital work
related to the initial trail construction would come from
The Trust, the Municipality must bear the perpetual
annual maintenance costs. Although these initial costs
are estimated at anywhere between $500.00 to $1,000.00
per kilometre of trail, it should be noted that as the
trail develops further, annual maintenance cost will also
increase.
7.3.3 The issue of liability has been raised as a concern.
Potential hazards include areas of high traffic volume,
at -grade railway crossings, insufficient road allowance
width and poor visibility. However, most of these
potential hazards are located in the section of the trail
east of Bond Head which is not recommended at this time.
The section which staff proposed for implementation
(Darlington Park to Bond Head) identifies certain portion
of the trail to follow existing roads with the road
shoulder to be used for trail purpose. Signage will be
erected at appropriate places to request the trail users
to stay off the road pavement. Staff are satisfied that
we have taken all possible precautionary measures at this
time to ensure public safety as related to the usage of
the trail.
7.3.4 The use of pesticides along the proposed trail alignment
has caused concern for vegetable growers east of Bond
Head. The ownership status of Lakeshore Road as well as
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5
REPORT NO.: PD -8 -94
PAGE 17
problems associated with insufficient road allowance
width prompted staff to recommend that the trail east of
Bond Head not be endorsed at this time. Staff will be
relying on the assistance and /or expertise from the
Regeneration Trust to address some of these issues.
8. CONCLUSION:
Council's endorsement of the Waterfront trail will focus the
municipality's future efforts on establishing a publicly
accessible waterfront with both passive and active
recreational opportunities as well as expressing a desire to
work in cooperation with the Regeneration Trust to assist the
Province to implement a waterfront trail from Burlington to
Trent River. Staff is of the opinion that the positives
outweigh the negatives and therefore suggest Council to
endorse the recommendations of this report. In the event
Council does not wish to participate in the trail, Council
should disregard the recommendations contained herein and
therefore receive this report for information purpose and
advise the Regeneration Trust accordingly.
Respectfully submitted,
� p
Franklin Wu, M.C.I.P.
Director of Planning
and Development
Walter Evans, P.Eng.
Director of Public Works
Jo ph WCaruana
D ;ctor of Community Services
CS *FW *jip
11 January 1994
Recommendefl for presentation
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e Marano, Acting
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Phase 1
Mr. Bruce Carr,
Implementation Manager
Waterfront Regeneration Trust
207 Queens Quay West, Suite 580
Toronto, Ontario.
M5J 1A7
Mr. Chris Conti
Central Lake Ontario Conservation
Authority
100 Whiting Avenue
Oshawa, Ontario.
Li H 3T3
Mr. Jim Tedford
Ganaraska Region
Authority
P.O. Box 328
Port Hope, Ontario.
L1A 3W4
Conservation
Mr. Si -Dae Kim
Ministry of Natural Resources
P.O. Box 7400
10401
Dufferin Street
Maple, Ontario.
L6A 1 S9
Penny Waghorne
Ontario Hydro
P.O. Box 4000
Bowmanville, Ontario.
L1 C 3Z8
Marie Cardno
Management Board Secretariat
777 Bay Street
15th Floor
Toronto, Ontario.
M5G 2E5
Linda Civerio, Planner
Room A5, G13
Ontario Hydro
700 University Avenue
Toronto, Ontario.
M5G 1X6