Report 1.0 BACKGROUND 2.0 INPUT FROM OTHER SOURCES 3.0 ANALYSIS. To: Date of Report:

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1 Report To: From: Subject: Oshawa Waterfront Coordinating Committee and Development Services Committee Commissioner, Development Services Department Oshawa Waterfront Master Plan Terms of Reference Outline Item: Date of Report: OWCC/DS September 25, 2006 File: Date of Meeting: B September 28, 2006 Ward: BACKGROUND 1.1 Purpose On May 1, 2006 Council directed That the City immediately initiate a process to establish an upto-date comprehensive vision and master plan for the Oshawa Harbour Area, including a review of the current planning instruments (Durham Regional Official Plan, City Official Plan, and Zoning By-law) and that staff be directed to report back on a study program including the manner and extent to which current initiatives can be incorporated into the vision and master plan. On July 17, 2006 Council directed That the Commissioner of Development Services be authorized to immediately sole source and engage the firms Brook McIlroy, Macaulay Shiomi Howson, Shoreplan Engineering, and Golder Associates (and any sub-consultants as required) to develop a Terms of Reference, study area, work program, schedule and cost for a comprehensive vision and master plan exercise for the harbour; said work plan to include stakeholder and public input opportunities. Staff were also directed to report back to the Oshawa Waterfront Coordinating Committee and Development Services Committee in September This report responds to the above-noted direction and recommends a process for advancing and concluding an integrated and realistic new vision for the City s Waterfront and Harbour. 2.0 INPUT FROM OTHER SOURCES This report was prepared with input from Brook McIlroy Inc., Macaulay Shiomi Howson Ltd., Golder Associates, Shoreplan Engineering, Touristics, and Hemson Consulting Ltd., the Central Lake Ontario Conversation Authority and Community Services. 3.0 ANALYSIS 3.1 Study Area Exhibit No. 1 identifies the proposed Master Plan study area boundaries, along with a number of precincts that comprise the Oshawa Waterfront (e.g. Lakefront West Park, Stone Street Park,

2 Coordinating Committee (Continued) Meeting Date: September 28, 2006 Second Marsh, McLaughlin Bay Wildlife Preserve). In determining the limits of the study area, the 1987 Oshawa Waterfront Development Plan was considered as well as road patterns, property ownership and relevant current issues. Given the different issues and concerns found within the study area, it has been divided into the following two geographic areas as shown on Exhibit No. 1: Oshawa Harbour Area; and Balance of Oshawa Waterfront. 3.2 Study Purpose, Approach and Scope of Work The overall purpose of the Master Plan is to create a comprehensive and realistic vision for the Waterfront. This is proposed to be undertaken in four steps which are discussed shortly. At great deal of relevant and current work has been undertaken along the City s Waterfront. This includes the Lakefront West Park Master Plan, Stone Street Park Master Plan, Second Marsh Management Study, and the Outdoor Sports Facility Study (e.g. identified a fast pitch facility for Lakefront West Park, and a soccer facility shared jointly between Lakeview Park and Southmead Park). This work is not proposed to be redone but will be incorporated into the Master Plan as givens. The work will, however, be reviewed and tweaked as appropriate to ensure that it accommodates linkages, features and icons which will serve to tie the waterfront together in a comprehensive, understandable and unique way. A number of the tasks proposed to be undertaken as part of the Master Plan have been previously directed by Council at one time or another. Many of these tasks were never initiated and, for a variety of reasons, the timing and relationship between the various tasks were never coordinated. The proposed Master Plan intends to place all of these necessary tasks into a single framework and administrative structure which will allow them to be undertaken and completed in a practical, comprehensive manner which allows each of the tasks to inform the other tasks. For instance, land use, marina and environmental studies will not be prepared independently of one another but will be completed somewhat simultaneously so to achieve the best balance. A flow chart illustrating the various steps of the Master Plan study process is provided in Attachment No. 1 to this report. Step One: Background Review and Analysis This step will complete relevant background, identify issues and undertake the analysis required to identify realistic options. Research and documentation will include the following: Waterfront Scan: Review Oshawa waterfront and related precincts and associated plans. Identify Council positions, implementation status, original implementation cost, and issues that need to be addressed. Update implementation costs. Examine relationship between the Oshawa waterfront and those in adjacent municipalities (e.g. Darlington Provincial Park). Marina Business and Master Plan: Determine operating costs, capital costs, location of

3 Coordinating Committee (Continued) Meeting Date: September 28, 2006 facilities (including boat storage, dredgate disposal options, etc.). This will help finalize the Marina Risk Assessment currently being undertaken by Aqua Terre Solutions Inc. (c) (d) (e) (f) (g) (h) Harbour Area Environmental Contamination Review: Examine existing data for the Harbour Area and identify a strategy to address environmental contamination (e.g. need for further study on east wharf, cost constraints associated with various remediation approaches and confirmation of risk assessment approach to the west wharf and marina). Preliminary West Wharf Risk Assessment: Determine types of land uses and where they can be located assuming majority of contamination remains in place. This component incorporates the initial steps of a Risk Assessment, (e.g. preparation of a risk assessment model), but does not include time and costs associated with making submissions to the Ministry of Environment. The remaining steps for a Risk Assessment of the West Wharf include actual preparation of risk assessment documentation, any supplementary tests, and submission to the Ministry of the Environment and would be undertaken during Step Four of the study process once Council has identified its new vision. Port Oshawa Assessment: Examine need for commercial port, potential alternative port locations (e.g. St. Marys Cement), viability of the port, and alternative management model for the port (e.g. economic development corporation). A structural audit of the Harbour facilities is beyond the scope of this study unless the Oshawa Harbour Commission is prepared to provide access and possibly share costs; however, any available audit information will be reviewed. Examine compatibility and impacts of expanded port operations and related transportation infrastructure. Waterfront Comparison: Review other relevant waterfronts with a focus on harbour areas, marinas and adjacent amenity/recreational areas, in order to assist in identifying opportunities for the Oshawa Harbour Area; Harbour Area Constraints Assessment: Review existing natural conditions, and identify measures to sustain and or improve the refurbishment of the natural environment where feasible. Contact relevant agencies to identify constraints associated with development in the area (servicing, floodplains, etc.). Harbour and Waterfront Funding Review: Identify funding sources for initiatives in the Harbour and along the remainder of the waterfront (e.g. Federal and Provincial programs and grants, sale of City owned land, development charges, etc.); Step Two: Preparation and Evaluation of Options Based on the background review and analysis completed in Step One, the following would be undertaken: Harbour Area: Develop land use options for the harbour area. Develop appropriate criteria for evaluation of land use options, undertake evaluation and recommend a preferred land use plan for the Harbour Area.

4 Coordinating Committee (Continued) Meeting Date: September 28, 2006 Balance of the Oshawa Waterfront: Identify role, function and plans for various precincts, examine linkages to, from and along the waterfront, identify measures to link and integrate waterfront precincts, determine need for additional studies, updates of existing plans, identify options as appropriate and carry out a preliminary financial analysis (i.e. examine cost estimates and potential revenue sources). Step Three: Waterfront Master Plan Report This step will create a document titled Waterfront Master Plan that will consist of: (c) A Waterfront Vision Statement articulating the recommended vision for the entire Oshawa waterfront, including a specific commentary on the Harbour area. A Waterfront Master Plan outlining the planned roles and functions for each waterfront precinct, and how they should be connected. This will also document all of the work to date on the waterfront and identify the best way to tie it all together in a comprehensive, integrated and unique way. Recommendations on how to deal with any unstudied gaps in the waterfront will also be included. The plan will also include a preliminary financial strategy that identifies potential costs and funding sources. A Harbour Area Plan providing a detailed conceptual outline for how this specific waterfront precinct should be planned and will include but not be limited to the following: (i) (ii) (iii) (iv) (v) (vi) Marina Business Plan and Master Plan: This component will provide financial projections, discuss operational issues and provide a recommended layout for the marina. Harbour Land Use Plan: This plan will conceptually identify the location of various land uses (e.g. where boat launch should be located, where residential can be developed, what lands should be used for parks, etc.). Harbour Urban Design Concept: This concept will illustrate the recommended Vision for the harbour area. Role of Port Oshawa: This component will address the appropriate role and management of the Port, inclusive of potential impacts associated with the Harbour development. Harbour Financial Strategy: This component will outline the costs and potential sources of revenues required to bring the Vision to fruition. Harbour Remediation and Natural Environment Plan: This component will summarize the recommended approach to addressing remediation and improving the natural environment in the Harbour Area.

5 Coordinating Committee (Continued) Meeting Date: September 28, 2006 (vii) Preliminary West Wharf Risk Assessment: This component will form the basis of a risk assessment that can be submitted to the Ministry of the Environment in order to remediate and redevelop the west wharf. (d) Supporting Documentation: This report would summarize the findings from the various steps in the study. Step Four: Implementation Strategy This portion of the work program is dependent on the findings of Steps One, Two and Three but is anticipated to include: (c) (d) Completion of environmental studies implementing the recommended approach for soil contamination (e.g. documentation and submission to the Ministry of the Environment for the West Wharf Risk Assessment); Development of detailed Urban Design Guidelines; Preparation of any required amendments to the Official Plan and Zoning By-law; and Preparation of an Action Plan identifying tasks, timeframes and confirming funding sources. Prior to proceeding with Step Four, staff would report to Council for direction. 3.3 Consultation Extensive public consultation is necessary to achieve a successful, shared vision of the waterfront and is proposed to include the following: Making information available and providing contacts on the City web-site; Public Open Houses and workshops to advise and solicit information from the public. Public open houses would be scheduled as follows: (i) (ii) (iii) (iv) Project Initiation: To provide information about the Waterfront Master Plan study process and to solicit general comment and visions regarding the waterfront; At conclusion of Step One: To provide the results of Step One including the waterfront s opportunities and constraints. This session would also provide an opportunity for the public to identify the types of options they would like to see developed; At conclusion of Step Two: To overview the options prepared by the consulting team and obtain input regarding the options and evaluations; At conclusion of Step Three: This meeting would allow the public to voice their

6 Coordinating Committee (Continued) Meeting Date: September 28, 2006 opinions regarding the Waterfront Master Plan document. Contact and in some cases interviews, will be held by staff and the consulting team with relevant agencies and stakeholders as required to gather necessary information and input (i.e. Transport Canada, Friends of Second Marsh, Marina Users Group, key landowners, etc.). It is also proposed that the development community be consulted on a regular basis to get its input on the do-ability of various options. Local developers as well as the GTA Developer Group previously consulted in respect to the downtown are intended to be contacted. 3.4 Reporting Structure and Project Supervision It is proposed that Development Services staff and the lead consultant, as necessary, would report to the Oshawa Waterfront Coordinating Committee on a three week basis to provide updates and seek direction as appropriate. The OWCC would be the Steering Committee for the Master Plan. Consultant and related staff reports would be prepared at the end of each step. These would be presented to the Oshawa Waterfront Coordinating Committee and then forwarded to the Development Services Committee and Council. A staff Technical Advisory Committee (TAC) chaired by Paul Stewart and comprised of representatives from various departments and other key agencies, would coordinate and work with the consultant team on a daily or as necessary basis. The TAC would provide background information and support the consultants. 3.5 Other Ongoing Waterfront Initiatives The ongoing Harbour Road Land Use Study and Marina Risk Assessment will continue to the extent possible independent of this study process. On February 27, 2006, Council gave direction to retain Decommissioning Consulting Services Limited (DCS) to undertake a Risk Assessment for the West Wharf. Work was subsequently put on hold, given the direction to undertake a master plan which could potentially result in different land uses on the west wharf. It is recommended that DCS be notified that their services are no longer required and that they should submit all of their work to date and an invoice for services rendered. It is recommended that Golder take over the Risk Assessment as part of a comprehensive approach to environmental management at the harbour. This will ensure the Risk Assessment is completed in a manner which is sensitive and reflective of the vision being developed. 3.6 Recommended Consultant Selection Process The Oshawa Waterfront Master Plan must get underway immediately and be completed expeditiously. The need for an updated Vision has been cited as part of the City s rationale for opposing the CN rail spur to the Harbour. Further, the waterfront is a key municipal priority as reflected in the City s Community Strategic Plan. Accordingly, it is recommended that the normal procurement process outlined in the Purchasing By-law No be waived and that Macaulay Shiomi Howson (i.e. Liz Howson) be sole-sourced to coordinate a consultant team including the following firms:

7 Coordinating Committee (Continued) Meeting Date: September 28, 2006 Brook/McIlroy (urban design, planning) Golder Associates (remediation and environmental) Shoreplan Engineering (marina engineering) Touristics (marina business plan) To Be Determined (port analysis/economic impact analysis) Some minor additional sub-consulting services may be required as the study proceeds (e.g. transportation, servicing and floodplain issues). The majority of the consultants identified above have undertaken work in the Oshawa Harbour Area and are already familiar with some of the issues. The consultants are also professional and highly regarded with good track records. Staff are satisfied that the price proposed is fair and can be accommodated with funding already approved by Council. 3.7 Project Schedule The preparation of the Waterfront Master Plan is a significant undertaking and a municipal priority. Anticipated timing is as follows: Step 1: Background and Analysis will be completed by the end of 1 st Qtr 2007; Step 2: Preparation and Evaluation of Options will be completed by late 2 nd Qtr/early 3 rd Qtr 2007; and (c) Step 3: Waterfront Master Plan Report will be completed by the end of 3 rd Qtr The study outline includes an initial public open house. This public open house is intended to be held during the week of November 20-24, RESPONSE TO COMMUNITY STRATEGIC PLAN A Waterfront Master Plan would advance Goal A (A Vibrant, Strong, and Progressive Community) of the City s Community Strategic Plan by helping to realize the Waterfront s Potential through moving ahead with waterfront planning and redevelopment, addressing harbour and waterfront environmental issues, enhancing connections to and from the waterfront and encouraging recreational, residential and commercial development.

8 Coordinating Committee (Continued) Meeting Date: September 28, FINANCIAL IMPLICATIONS Completion of Steps One, Two and Three of the study is expected to cost approximately $320,000 (excludes GST), including consultant fees and disbursements. The cost is proposed to be funded from the following funds already committed by Council for harbour studies and projects, as outlined as follows: Project Name Project Number Amount Marina Business Plan 0469 $ 60,000 Oshawa Harbour Initiatives ,000 Marina/West Wharf Urban Design Study ,000 Port Oshawa Marina General ,000 Oshawa Harbour Studies ,000 Total funds available: $ 320,000 This will leave approximately $50,000 remaining from previous budget allocations for the harbour area that can be applied towards Step Four. 6.0 RECOMMENDED ACTION It is recommended: 1. That the outline for undertaking Steps One, Two and Three of the Oshawa Waterfront Master Plan, contained within the Report OWCC/DS-06-01, dated September 25, 2006, be endorsed as the basis for engaging consultants and undertaking the associated work. 2. That the requirements of Article 6.06 of the Purchasing By-law No be waived and the Director of Purchasing Services be authorized to engage, on a sole-source basis, Macaulay Shiomi Howson to coordinate a team of sub-consultants to undertake Steps One, Two and Three of the Oshawa Waterfront Master Plan generally on the basis of the work program outlined in Report OWCC/DS-06-01, dated September 25, 2006 and subject to the negotiation of a contract to the satisfaction of the Commissioner, Development Services Department. 3. That an upset limit of $320,000 for Steps One, Two and Three of the Oshawa Waterfront Master Plan be approved with funding from the reallocation of existing approved funding for the Harbour area as follows: Project Name Project Number Amount Marina Business Plan 0469 $ 60,000 Oshawa Harbour Initiatives ,000 Marina/West Wharf Urban Design Study ,000 Port Oshawa Marina General ,000 Oshawa Harbour Studies ,000 Total funds available: $ 320,000

9 Coordinating Committee (Continued) Meeting Date: September 28, That staff be authorized to schedule and advertise the public meetings necessary to complete the Oshawa Waterfront Master Plan, as necessary and provide members of Council with a copy of the notice of such meetings. Bruce Hunt, MCIP, RPP, Director, Planning Services Development Services Department Thomas B. Hodgins, B.E.S., M.A., RPP, Commissioner Development Services Department PS/c Attachments

10 The City of Oshawa Waterfront Second Marsh k:\exhibits\06sept\exhibits\lakeshore_ortho_ex1.mxd\ K:\exhibits\06sept\exhibits\lakeshore_ortho_ex2.ai\ Harbour Road Land Use Study Area Oshawa Harbour and Vicinity Southmead Park McLaughlin Bay Wildlife Preserve Lakefront West Park Maurac Lands Central Part Stone Street Park and Vicinity Valley, School Residential Lots LEGEND Lakeview Park and Vicinity Lake Ontario Harbour Area Balance of Waterfront Stone Street Residential Neighbourhood Water Supply Plant Exhibit No. 1 N City of Oshawa DEVELOPMENT SERVICES DEPARTMENT

11 OWCC\DS Attachment No. 1 Oshawa Waterfront Master Plan and Harbour Area Plan Preliminary Work Plan Steps Step 1: Background Review and Analysis Step 2: Preparation & Evaluation of Options Step 3: Waterfront Master Plan - Prepare document Step 4: Implementation Strategy Work Program Background Review & Analysis Project Initiation Review & finalize work program Waterfront scan Marina Business & Master Plan Harbour Environmental Contamination Review Preliminary West Wharf Risk Assessment Port Oshawa Assessment Waterfront Comparison Harbour Area Constraints Assessment Harbour and Waterfront funding Review Prepare Options and Evaluation Harbour Area Balance of the Waterfront Prepare: Waterfront Vision Waterfront Master Plan Harbour Area Plan Marina Master Plan Harbour Land Use Plan Harbour Urban Design Concept Role of Port Oshawa Harbour Financial Strategy Harbour Remediation and Natural Environment Plan Preliminary West Wharf Risk Assessment Supporting Documentation Waterfront Vision & Implementation Strategy To be Determined But could include: Action Plan OPA/ZBA Submission of Risk Assessment Urban Design Guidelines Land Acquisition/Sale Public / Stakeholder Liaison Public Notice Website Public Open House (project initiation) Individual Stakeholder Interviews (to identify issues and background information) Public Open House (opportunity and constraints) Public Open House (Options & Evaluation) Public Invited to Attend Presentation to Committee