HomeMy WebLinkAboutPD-298-90 ."°"'"°y TOWN OF NEWCASTLE
YAL-CO.GPA REPORT File #_ , ". / .
Res. #
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-- By-Law #
HEFTING: General Purpose and Administration Committee
DATE: October 1, 1990
REPORT #: PD-298-90 FILE #:
SUBJECT: WATERSHED: SECOND INTERIM REPORT OF THE ROYAL COMMISSION
ON THE FUTURE OF THE GREATER TORONTO WATERFRONT
RECOMMENDATIONS:
It is respectfully recommended that the General Purpose and
Administration Committee recommend to Council the following:
1. THAT Report PD-298-90 be received for information.
1. BACKGROUND
1. 1 On April 23, 1990, Staff presented PD-152-90 on the First
Interim Report prepared by the Royal Commission on the
Future of the Toronto Waterfront. The Staff Report outlined
the Commissions mandate, as well as the initiatives put
forth by the Provincial Government, to preserve waterfront
areas as an attractive and accessible place for the public.
1.2 The Staff Report also reviewed a discussion paper entitled
"A Green Strategy for the Greater Toronto Waterfront:
Background and Issues" . The issues put forth in this
discussion paper surrounded the role of public agencies,
public demand and attitudes in activities at the waterfront,
REPORT NO. : PD-298-90 PAGE 2
the restoration of the ecosystem, funding and a provincial
policy statement to ensure a shared vision of the
waterfront.
2. "WATERSHED"
The Second Interim Report entitled "Watershed" was released
by the Commission on September 12, 1990. The objective of
this report is to provide the basis for governments to act
on the fundamental decisions that have to be taken to ensure
that the waterfront area becomes an attractive and
accessible place for the public .
The report is 156 pages in length and contains 80 major
recommendations. It is not possible to review each one and
thus the purpose of this report is to only highlight the
most relevant issues for the Town. A copy of the full
report is available for inspection in the offices of the
Planning and Development Department.
2 . 1 The Ecosystem Approach
The report identifies the Greater Toronto Area as the
Greater Toronto Bioregion. The Bioregion is bounded by the
Niagara Escarpment on the west, the Oak Ridges Moraine to
the north and the east and Lake Ontario to the south. The
GTA is identified as a bioregion to emphasize that
environmental issues are not defined by political
boundaries. The Report notes the similarities in land
forms, soil type, water and air in a bioregion. The
ecosystem approach highlights the interactions among
ecological, social, economic and political systems within
the bioregion. The report concludes that the bioregion is
under considerable stress, due to urbanization, development
pressures and pollutants . The carrying capacity of the
ecosystem, that is the ability of the natural environment to
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REPORT NO. : PD-298-90 PAGE 3
absorb the impact of human use, is very much strained and
cannot be sustained over the long term.
The Commission stresses the urgent need for a
regeneration of the entire Bioregion to remediate
environmental problems caused by the activities of the
past and to ensure all future activities result in an
improvement of the environmental health.
2 .2 Principles
Based on the analysis of the ecosystem and based on
public comment from recent hearings, the Commission
recommends nine principles to guide the regeneration
process by accepting an ecosystem approach to managing
the waterfront.
clean
green
useable
diverse
open
accessible
connected
affordable and
attractive
The nine principles are intended to form the basis of
policies and planning for the waterfront by all levels
of government and should be used as a standard against
which waterfront development and management can be
evaluated.
The nine principles are elaborated as follows:
a) Clean
The air, land, sediments and water should be
free of contaminants that impair beneficial
REPORT NO. : PD-298-90 PAGE 4
uses by people and other living beings .
Water quality should be such that it allows
fish to be eaten without restrictions caused
by contaminants; people can swim or engage in
water activities; that levels of potentially
toxic chemicals in drinking water meet health
standards .
b) Green
The diversity and productivity of ecological
communities should be protected and restored
through measures to:
- preserve the genetic diversity of
indigenous plants and animals;
- restore healthy natural habitats and
communities;
- maintain natural ecological processes .
Natural vegetation should be used to restore
and enhance the attractiveness, health, and
usability of human communities .
c) Useable
The waterfront should continue to support a
mix of public and private uses that:
- are primarily water-related;
- permit public access, use, and enjoyment
of water's edge;
- enhance residential neighbourhoods and
appropriate industrial uses;
- are environmentally friendly in form and
function;
- minimize conflicts with adjacent
communities or uses;
REPORT NO. : PD-298-90 PAGE 5
promote greater year-round use.
d) Diverse
Waterfront uses, programs, and environments
should provide diverse experiences for
visitors and residents .
The mix of open space and recreation
facilities should balance competing public
demands within environmental limits .
Waterfront uses should be balanced between:
- public and private;
- urban and rural;
- the built and natural environments;
- large-and small-scale;
- active and passive;
- busy and quite;
- free and user-pay.
e) Open
The density and design of waterfront
structures should not create a visual barrier
or be an intrusion on the water's edge.
The water's edge should be, and clearly be
identified as open to public access .
f) Accessible
All waterfront activity nodes and communities
should be accessible by public transit as
well as by road, with increasing emphasis on
transit.
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REPORT NO. : PD-298-90 PAGE 6
The waterfront should be easily accessible by
foot or bicycle with major improvements where
necessary to overcome the barriers presented
by road and rail corridors.
The waterfront should be safe, and accessible
to the disabled as well as all other sectors
of society.
Transportation planning in the waterfront
area should:
- take into account the impact of
automotive traffic on the environment;
- establish an appropriate balance among
rapid transit, surface transit, road
transportation, and passenger rail;
- relate waterfront, environmental, and
land-use objectives to transportation
capacity priorities;
- strengthen commuter, freight, and inter-
city rail and air services, as appropriate;
- explore such innovative facilities as
waterborne passenger transportation.
g) Connected
The waterfront should be linked by continuous
pedestrian and bicycle trails from Burlington
to Newcastle.
Major green corridors should connect the
waterfront valley systems, and the Oak Ridges
Moraine.
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REPORT NO. : PD-298-90 PAGE 7
Waterfront planning should emphasize
connections to the waterfront's natural and
cultural heritage.
h) Affordable
Waterfront parks and facilities should be
financially available to all income groups .
Waterfront residential projects should
include affordable housing.
i) Attractive
Design and landscaping should produce
distinctive and memorable places along the
waterfront.
Waterfront design should:
- protect vistas and views of the lake;
- emphasize sensitive design and massing
of buildings;
- consider the relationship between
buildings, open spaces, and the water;
- create desirable microclimates;
- incorporate attractive and useable
links;
- use harmonious colours, textures, and
materials;
- use natural, as well as manicured,
landscape techniques.
The Commission is confident that the waterfront can be
restored to ecological health, to fulfil the objections of
the Commission.
REPORT NO. : PD-298-90 PAGE 8
3. REGENERATION OF THE WATERFRONT
3 . 1 The Royal Commission has eighty recommendations that would
be crucial to the regeneration of the waterfront. The
recommendations are identified as area wide issues which
include the entire GTA and specific area issues which deal
with each region.
3 .2 Some of the recommendations pertaining to the Town of
Newcastle are summarized below.
(a) In order to implement the Ecosystem Approach the
Commission is recommending the following:
all levels of government and all agencies to adopt
the ecosystem approach;
the Province should declare the waterfront from
Newcastle to Burlington a Provincial resource
Waterfront Partnership Agreements with
municipalities should be implemented to provide
consistency in future development;
changes to the Planning Act to reflect the
ecosystem approach and the province should
encourage citizens coalitions, to provide research
and advocacy on behalf of waterfront users .
(b) Waterfront Trail
The Province should plan, co-ordinate and implement a
Waterfront Trail from Newcastle to Burlington, to be
completed by 1993 . An association would be established
for the implementation and support. In addition each
municipality shall incorporate such into the
appropriate planning document.
REPORT NO. : PD-298-90 PAGE 9
(c) Oak Ridges Moraine
The Commission recommends to declare the Oak Ridge
Moraine a Provincial interest under Planning Act, for
the preservation of the moraine, protecting the
headwaters, valleylands, scenic landscape etc. In
addition, the Commission recommends that a planning
group with a clear Provincial mandate be established to
undertake a study of the Oak Ridges Moraine and
establish policies for this area.
(d) Water Quality
There are five subcategories of Water Quality, four of
which effect the Town of Newcastle.
i) Provincial and public involvement should be sought
in the preparation of the Federal Government's
"Lake Ontario Toxics Management Plan" to restore
the environmental integrity of Lake Ontario.
ii) Municipal-Industrial Strategy for Abatement
(MISA) . Regional municipalities should adopt a
"Model Sewer Use By-law" similar until MISA Sewer
User Program is in place.
iii) Sediments
The Province of Ontario should conduct an
investigation and the rehabilitation of
contaminated sediments (organic chemicals, heavy
metals) along GTA Waterfront.
iv) Water Quality and Consumption
The Province should undertake an investigation
into the extent of the relationship between water
REPORT NO. : PD-298-90 PAGE 10
quality and volume of water used by the population
of GTA and assess conservation methods as a
contribution to improving water quality.
(e) Lakefill
The Commission is recommending a moratorium on
lakefilling projects until comprehensive lakefill
policies can be brought forward for public review.
(f) Natural Areas
Provincial government in concert with agencies and
volunteer groups should develop a strategy for
preservation and management waterfowl, fish, wildlife
and natural areas .
(g) Trees
The Commission recommends that the Province review the
Trees Act in conjunction with municipalities, interest
groups and conservation authorities to ensure the
protection of trees. It is also recommended that
municipalities and conservation authorities develop
strategies to double the number of trees in the GTA
waterfront municipalities by the turn of the century.
(h) Conservation Authorities
The Commission recommends that the mandate of the
conservation authorities be reviewed to determine
whether more fundamental reforms are required. The
Commissions suggest that conservation authorities
should assume a greater role in protecting natural
environments .
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REPORT NO. : PD-298-90 PAGE 11
(i) Urban Form and Structure
The Commission recommends that all levels of government
give recognition to the to the Waterfront, Oak Ridge
Moraine and the river valleys in the context of
discussions on the urban form for the entire GTA. (see
Report PD-262-90)
( j ) Water-based Commuter Transportation
A feasibility study be undertaken for an all-season
waterborne transit service along the waterfront between
Newcastle and Burlington.
3.3 DURHAM REGION
The Commission identifies the Region of Durham as having the
best remaining opportunities for protecting the natural
waterfront. However, the Commission's Report does express
concern with the pressures of rapid urbanization and without
any direction the opportunity for an accessible and green
waterfront will be lost. The Commission is critical of the
Region of Durham, for lack of leadership and direction and
similarly notes that the C.L.O.C.A. lacks respect and public
support.
Given these factors the Commission is concerned with the
lack of a shared vision of the waterfront and therefore
recommended a declaration of Provincial Interest, under the
Planning Act, of the Waterfront in Durham Region. In
addition, the Commission recommends that the Province should
negotiate a Waterfront Partnership Agreement with Durham
Region, other levels of government and their agencies and
appropriate private-sector interests should be closely
linked in the preparation of a Durham Waterfront Plan. The
Commissions report goes further to suggest planning issues
that should be addressed through the Plan, such as:
REPORT NO. : PD-298-90 PAGE 12
funding for waterfront plans;
mechanism for public acquisition of lands for open
space areas and linkages;
that the regional and local plan conform to the
ecosystem approach and principles outlined in
watershed;
identification of roles and responsibilities of
agencies;
clarification of the roles of the conservation
authorities, ultimately delegating more power
with regard to conservation issues;
a review of regional infrastructure so they do not
detract from waterfront objectives.
There are several other recommendations dealing with
individual municipalities with the Region that will have to
be considered.
3.4 TOWN OF NEWCASTLE
The Commission has recognized that the Town of Newcastle
does not have a comprehensive plan covering the entire
waterfront. The Commission does note that the Town as
preparing a secondary plan on a portion of the waterfront
but as the reaction to a tourism/recreation proposal in Port
Darlington. The Commission is therefore recommending that a
study be undertaken to address the public interest in the
community. The Commission has also recognized that there
are a number of issues surrounding the Newcastle waterfront
that must be examined closely, such as expansion plans of
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REPORT NO. : PD-298-90 PAGE 13
St. Marys Cement and Darlington Generating Station, � in
addition the significance of any natural habitats . The
following recommendations deal with the Town of Newcastle,
in addition to the foregoing recommendation pertaining to
the entire Region of Durham.
The protection of McLaughlin Bay, West Side Beach
Marsh, Wilmot Creek and the Bond Head Bluffs .
To maintain or create green corridors to
Bowmanville/Soper Creek, Wilmot Creek and the Ganaraska
Valley, and Graham Creek.
Identifying challenges of a Waterfront trail route
around Darlington Generating Station and St. Marys
Cement.
Protection measures for West Side Beach Marsh including
a suitable buffer area.
A suspension of approval for any type of development
along the Newcastle Waterfront until a plan for the
entire length has been approved OR it can be
ascertained the development conforms to the principles
of such a Plan and those contained in the Royal
Commission Report.
4. CONCLUSIONS
4 . 1 There are a number of issues and concerns that have been
raised in the "Watershed" report which concern the
municipalities and conservation authorities within Durham
Region. The Commission is attempting to bring all levels of
government, the Conservation Authorities and interest groups
together to ensure the proper development of the GTA
waterfront.
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REPORT NO. : PD-298-90 PAGE 14
In recognition of this, there have been a number of meetings
with representatives from various municipalities within the
Region as well as Durham Planning, Ministry of Municipal
Affairs and the Royal Commission to examine the possibility
for the co-ordination and development of such a plan.
However, there has not been an agreement as to the need or
timing of such a study.
4 .2 Notwithstanding the foregoing, Staff have begun preparations
for proceeding with a Newcastle Waterfront Study. Staff
have met with the Ministry of Municipal Affairs and the
Ministry of Tourism and Recreation to discuss the scope of
the study and to discuss the availability of funding. Staff
will be forwarding a report to Committee on this progress in
the near future.
4. 3 There are several significant recommendations which impact
on the Port Darlington Secondary Plan including lakefilling
and the suspension of approvals of development until a
Newcastle Waterfront Plan is prepared. Staff will be
reviewing the Port Darlington Secondary Plan in light of the
recommendations of the Royal Commission.
4 .4 "Watershed" is the Second Interim Report of the Royal
Commission on the Future of the Greater Toronto Waterfront
which provides 80 recommendations to Federal and Provincial
governments . Staff will keep Council informed of the
response of these levels of government and implications to
the Town.
REPORT NO. : PD-298-90 PAGE 15
Respectfully submitted, Recommended for presentation
to the Committee
Frariklin Wu, M.C. I.P. Lawrence E. Kotseff
Director of Planning Chief Administrative
and Development Officer
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*Attach
26 September 1990