Report to / Rapport au:

Planning and Development Committee /

Comite de l’urbanisme et de l’aménagement

Health, Recreation and Social Services Committee /

Comte de la santé, des loisirs et des services sociaux

and Council / et au Conseil

01 October 2002 / le 01 octobre 2002

Submitted by / Soumis par: Ned Lathrop, General Manager / Directeur général

Development Services Department / Services d’aménagement

Contact / Personne-ressource: Karen Currie, Manager, Development Approvals /

Gestionnaire, Approbation des demandes d’aménagement

580-2424 ext. 28310, karen.currie@ottawa.ca

Ref N°: ACS2002-DEV-APR-0213

SUBJECT: PETRIE ISLAND PARK ENVIRONMENTAL ASSESSMENT UPDATE

OBJET: PARC DE L’ÎLE PETRIE – ÉVALUATION ENVIRONNEMENTALE

REPORT RECOMMENDATION

That Planning and Development Committee and Health, Recreation and Social Services Committee recommend that Council authorize staff, subject to budget approval, to proceed with implementation of Phase One of construction of the Petrie Island Park and to carry out detailed water quality testing to determine if a swimming beach can be opened at the new Petrie Island Park.

RECOMMANDATION DU RAPPORT

Que le Comité de l’urbanisme et de l’aménagement et le Comité de la santé, des loisirs et des services sociaux recommandent au Conseil d’autoriser le personnel, sous réserve de l’approbation budgétaire, à procéder à la mise en œuvre de la Phase 1 de l’aménagement du parc de l’île Petrie et à effectuer des analyses détaillées de la qualité de l’eau afin de déterminer s’il est possible d’y ouvrir une plage.

PURPOSE

The purpose of this report is to update the Committee’s on the results of the Petrie Island Environmental Assessment study as it nears completion and to seek direction regarding the implementation of Phase One of the Petrie Island project and a future swimming water quality testing program.

BACKGROUND

Petrie Island is located at the northerly end of Trim Road in the Orleans community along the Ottawa River. The area, comprised of a series of small islands surrounding a “main” island, is almost entirely within public ownership. Two vacant privately owned lots and one permanent residence are located on the northerly shore of the main island. A large sand extraction business has existed on the eastern portion of the main island for approximately 50 years. This business is presently operating under a year-to-year lease agreement with the City. The area has become an increasingly popular recreational destination for residents and boaters. A local volunteer organization (Friends of Petrie Island) has operated a successful picnic area and interpretive nature trail program on the island for several years.

The area surrounding the island is classified as a Class 2 Provincially Significant Wetland and has been recommended as an Area of Natural Scientific Interest. The Regional Official Plan designates the waters adjacent to the island as Provincially Significant Wetlands and the island as Waterfront Open Space. The Cumberland Urban Official Plan designates the island as Open Space. The draft City of Ottawa Official Plan shows the main part of the island as Major Open Space and the waters surrounding the island as Significant Wetlands. Most of the island is within the 1:100 year flood plain limit of the Ottawa River.

In the fall of 2001 the City retained W.F. Baird & Associates to undertake a review of the existing conceptual Petrie Island master plan that was prepared by the former Township of Cumberland. The purpose of the review was to determine the public recreation potential for the island. The results of the study were presented to Planning and Development Committee on December 13, 2001. The report set out a three-phase approach to the development of the northeast portion of the island as follows:

Phase One - Shoreline erosion control and improvements, park construction, washroom / change room and canteen building and new parking areas.

Phase Two - Boat launch, walkways, additional park construction and shoreline improvements.

Phase Three - Marina building and dock facilities, expanded boat launch and final park improvements.

All potential phases of park development require separate environmental approvals. Committee provided direction to staff to undertake an Environmental Assessment and public consultation for Phase One of the project, to formulate recommendations regarding swimming water quality and to report the results of the study to a joint meeting of Planning and Development Committee (PDC) and Health, Recreation and Social Services Committee (HRSSC). Staff prepared terms of reference and in May this year retained a consulting team comprised of W.F. Baird & Associates along with Delcan Corporation and several other sub-consultants to undertake a class “B” Environmental Assessment (EA) study.

DISCUSSION

A project Steering Committee was formed to assist the study team in the review of alternative solutions and to guide the formulation of a preferred concept. The Committee was comprised of members of City Council, staff from Development Services, People Services, Transportation Utilities and Public Works, Emergency and Protective Services and Corporate Services. The Ministry of Natural Resources, the Ministry of the Environment, the Rideau Valley Conservation Authority and Community stakeholder groups such as the Friends of Petrie Island and the Ottawa Field Naturalists as well as First Nations peoples and members of the public at large also participated in the study.

Several sub-studies dealing with archeological potential, fisheries assessment, environmental matters, soils, architectural and water quality were carried out over the summer months as part of the EA process. The findings of these studies were used in the review of alternative options and in the selection of a preferred park development alternative.

Two advertised public open meetings were held at key junctures in the study process. At the June 24, 2002 meeting approximately 80 attendees reviewed background information on Petrie Island and the study process. Four alternative park development scenarios were presented for consideration (refer to Document 1). Approximately 30 comment sheets were submitted. The majority of respondents preferred the third alternative that generally included park grading and amenities, maintaining and enhancing the sandy shoreline and the creation of a new parking area. This alternative was developed into a concept park development plan that was presented for review at a second public open house held on September 18, 2002. The meeting was well-attended hosting approximately 150 people. Approximately 40 comment sheets were submitted. A summary of the comment sheet responses from the first and second open house meetings is appended as Document 2 to this report.

There was broad public support for the park design concept that included basic land forming and landscaping, shoreline improvements and erosion control, new gravel parking areas, a washroom / canteen and maintenance building (refer to Document 3). The total area of the new park would be approximately nine hectares. In the design, the central portion of the park would be left as a natural sandy area with a “horseshoe” shaped band of grassy parkland surrounding it. The westerly area includes new gravel parking areas that can be constructed in phases for a maximum of approximately 280 cars. The park field house or, “beach house” building would also be located in this part of the park (refer to Document 4). The easterly part of the park, which provides for future phases of park development, would be left as a sandy berm. The northerly shoreline would be left as a sandy shoreline. This area could, subject to the outcome of future water quality testing, be used as a swimming beach area. The shoreline is unstable at present in this area due to the steepness of the river bottom adjacent to the shoreline. The sand will be graded back in this area during park construction to provide a more natural, gently sloping sand bottom.

Historically, a long sandy spit extended eastward from the northeast corner of the island. Only remnants of this spit exist presently due to changing water levels and the operation of the sand extraction business. The new park design includes replacement of a short section of this spit. The new spit will provide an opportunity for additional waterfront access, views and vistas, fish habitat enhancement and protection for the bay area east of the island. No changes are proposed to the existing park area on the west developed by the Friends of Petrie Island however the shoreline in front of the part of the park and the existing parking area will be improved.

All proposed works along the shoreline, within the fill areas of the park and to service the washrooms building are subject to final environmental approvals. The EA document is now being finalized and will be issued for the required 30-day public and agency review period this winter. Necessary Provincial approvals and work permits to effect development of Phase One park construction are expected to be in place prior to the start of the spring 2003 construction season. Additional work by the fisheries and archeological sub-consultants, not anticipated in the original budget for Phase One, will be required to finalize approvals. The required fees for this work can be absorbed as part of the overall project budget.

The existing sand extraction operator on the island, Roger Grandmaitre Ltd., is currently under a short-term lease arrangement with the City. Staff has discussed with the owner a potential arrangement to provide the required sand fill to create the park prior to the sand operation being decommissioned and removed from the site. The cost of the provision of sand fill necessary to elevate parts of the new park above normal spring high water levels represents approximately one third of the overall 2.5 million dollar capital budget for the park. It is estimated that the required sand fill and the balance of park construction can be completed in 2003. Public access to the park would be in 2004.

The new park would be constructed from two funding sources in 2003. One million dollars is approved from the Cumberland Millennium fund which pays for the waterfront or “beach” works and related improvements including shoreline erosion protection, shoreline slope enhancements, new parking areas and access road upgrade. The additional 1.5 million dollar budget requested for 2003 covers the cost of “park” construction within the existing sand operation area and includes sand fill, top soil and seeding, recreation of the spit of land on the northeast corner of the park and construction of the washroom / canteen building.

Petrie Island offers an opportunity to provide a unique waterfront park in the City given its island context and proximity to adjacent environmentally sensitive area. Construction of the park fulfills the original intent of the former Regional municipality through purchase of the island in the early 1980’s to provide public open space areas and access to the waterfront in the Orleans area. The park will be a signature facility in the City and if a swimming beach is approved to be opened in the future as a component of the park it will provide an even broader range of use to the public. Additional study works are required in two areas to deal with the issues of swimming water quality and management of an urban park facility adjacent to environmentally sensitive lands.

Swimming Beach Water Quality Testing

To determine if a supervised swimming beach can be opened at Petrie Island, the Steering Committee directed staff to formulate recommendations regarding a water quality testing

program as part of the EA study. A limited water quality testing program carried out near the northeastern area of Petrie Island over the past three summers has demonstrated that water quality results are similar to those at existing City swimming beaches along the Ottawa River. The Petrie Island testing program was intended to provide base-line information only and does not identify sources of pollution, the extent to which each source of pollution affects water quality at the Island and does not provide sufficient detail to enable formulation of recommendations on possible remedial measures or on the appropriateness of opening a swimming beach as part of the new park.

Staff from Development Services, the Water Environmental Protection Program and Public Health and Long Term Care was involved in establishing a proposed testing program with the study consultants. Testing would be carried out over the summer months for a two-year period covering an area from Duck Island, upstream of the R.O. Pickard and Templeton (Quebec) sewage treatment facilities, extending to the easterly end of Petrie Island. The cost of the testing program, which would be undertaken primarily by City staff, is estimated at approximately $100,000.00 per year. This cost is proposed to be included in the 2003 City budget. If an unusually dry or wet summer season occurs during the testing program, the program may need to be extended. Program costs, however, would likely be reduced for the additional year(s) if an extension were required. Computer modeling of Ottawa River currents at and upstream of Petrie Island, necessary for the broader testing program, was carried out this year by Baird & Associates under the existing study contract.

If staff receives direction from Committee to proceed and approval of the necessary budget, testing would begin in the spring of 2003 and be completed in the fall of 2004. Following completion, a report making recommendations regarding the appropriateness of opening a public swimming beach at the new Petrie Island Park would be presented at a joint meeting of Planning and Development Committee and Health, Recreation and Social Services Committee. In the interim, the sandy shoreline portions of the park would be clearly signed to advise the public users of the park of the swimming restriction. If a swimming beach is approved in the future at the park, capital and operating budgets will have to be secured by the appropriate Departments.

Park Management Plan

The works contemplated for Petrie Island in 2003 are concentrated in the northeast part of the island. The area of public ownership however is much larger covering most of the island. The majority of the balance of the island is environmentally significant as has been identified through a number of previous studies of the area. The issue of the potential for harmful impacts to the more environmentally sensitive parts of the island caused by the increase in pedestrian traffic following the opening of the new park has been identified. Following park development in 2003, the island will be comprised of a more traditional urban park on the east (on the existing sand extraction area), the grassy informal park area to the west created by the Friends of Petrie Island and the more environmentally sensitive area to the west and south. A gravel trail (old cottage access road) extends to the west, which invites the public to enter this part of the island. This trail also provides access to one permanent residence and two vacant privately owned parcels of land.

An interpretive trails plan undertaken by Cumberland in 2000 made recommendations for a series of low-impact nature trails in the west part of the island. The recommendations of this study have not yet been implemented. Prior to the opening of the new park, staff need to prepare a park management plan which takes into consideration the recommendations of the Trails Study, that recognizes the conservation land – urban park nature of the island and examines ways in which public access to the more sensitive west area can be limited to an appropriate level. It is anticipated that City staff without additional budget requirements can formulate the management plan. The Friends of Petrie Island have also indicated that it would like to participate in this process.

ENVIRONMENTAL IMPLICATIONS

Following completion of the Environmental Assessment study and review and approval of the proposed design for the park, the project can proceed in 2003 on the basis that there are no environmental impacts resulting from construction that cannot be mitigated.

CONSULTATION

The City followed the prescribed Class “B” Environmental Assessment Study process involving the public through advertised open house meetings at two key junctures in the study. City departments, public agencies, non-government organizations, community associations and other individuals participated in the project Steering Committee and separately as required in the study.

FINANCIAL IMPLICATIONS

The budget estimate for Phase One park development as identified in the 2001 Master Plan Review was approximately $2,600,000.00. The cost estimate as refined through the EA process for the revised Phase One design is $2,500,000.00 including 15% contingency. This amount, with $1,000,000.00 recoverable through the approved transfer from the Cumberland Millennium Fund to the project capital budget, has been included in the draft 2003 Development Services budget.

ATTACHMENTS

Document 1 - Park Development Alternatives

Document 2 - Summary of Comment Sheets from the Public

Document 3 - Preferred Petrie Island Park Concept Plan

Document 4 - Field (Beach) House Concept Designs

DISPOSITION

Staff to complete detailed park design and pursue final approvals necessary to effect Phase One park construction and, subject to 2003 budget approval, enter into an agreement with Roger Grandmaitre Ltd. to purchase sand fill for the park and proceed with the balance of Phase One park construction in 2003. Further, subject to budget approval, undertake a detailed water quality testing program over a two-year period and report back to Committee the results of the testing program and make recommendations regarding the appropriateness of opening a public swimming beach at Petrie Island.

Park Development Alternatives Document 1

Alternative “A”: Status Quo – Sand Extraction Business

Key Characteristics of this alternative include:

• Allow sand extraction business to continue operations on existing site

• Do nothing to shoreline

• Maintain existing waterfront park

• No changes to existing/proposed wetland interpretive trails system

Alternative “B”: Create Park / No Changes to Shoreline

Key Characteristics of this alternative include:

• Phase sand extraction business out of operation and remove all related buildings and equipment

• Remove high sand piles, leaving flat sand area

• Do nothing to shoreline, permit natural restoration of site

• Construct appropriate park amenities and parking area

• No change to existing/proposed wetland interpretive

Trails system

Alternative “C”: Create Naturalized Sandy Shoreline and Park

Key Characteristics of this alternative include:

• Phase sand extraction business out of operation and remove all related buildings and equipment

• Regrade sand area to create small berms and higher areas less prone to flooding

• Construct a series of gently sloping natural sandy shore areas providing a transition from active to passive use areas

• Construct a series of beach headlands to stabilize the shoreline

• Create opportunities for aquatic habitat enhancement

• Maintain most of the existing shoreline vegetation

• Construct appropriate park amenities and parking area

• No change to wetland interpretive trails system

Alternative “D”: Create Revetment (Rock) Shoreline and Park

Key Characteristics of this alternative include:

• Phase sand extraction business out of operation and remove all related buildings and equipment

• Regrade sand area to create small berms and higher areas less prone to flooding

• Stabilize shoreline with rock revetments

• Create opportunities for aquatic habitat enhancement

• Maintain most of the existing shoreline vegetation

• Construct appropriate park amenities and parking area

• No changes to existing/proposed wetland interpretive trails system

Summary Of Comment Sheets From The Public Document 2

Petrie Island Park

Summary of Public Open House Comments

H:\ISO\SO1127\SOA\DOCS\Public Open House Comments.doc

Two public open houses were held during the study process at the Orleans Client Service Centre at 211 Centrum Boulevard. The first was held on June 24, 2002 (attended by approximately 80 persons), and the second was held on September 18, 2002 (attended by approximately 150 persons). Comment-questionnaires were distributed at each. Nearly all respondents indicated that the public open houses gave them a good understanding of the study.

Public Open House #1

The objective of the June 24, 2002 meeting was to present a background on the project, report on existing environmental conditions, and to solicit input on project alternatives. The main purpose of the questionnaire was to determine which alterative concept was preferred, and to ask what park amenities were sought. Thirty (30) surveys were completed.

Twenty-seven (27) responses were given to the question, “Do you agree that Petrie Island should be used for public park purposes”. Twenty-two (22) responded that they “agree”, representing 81%. Five responded that they agreed “somewhat”, three of who elaborated that they have a concern that the natural values of the island should be protected if a park is created. In general, the survey supports the understanding that there is broad public support for a park at this location.

Twenty-seven (27) respondents indicated their preference regarding the four alternative concept/solutions presented at the meeting. Of these, twenty-two (22) or 81% favored Alternative C (Create Naturalized Sandy Shoreline and Park). Two respondents preferred Alternative D (Create Revetment (Rock) Shoreline and Park). One respondent was undecided between Alternatives C and D. One respondent preferred that the sand extraction business continue as per Alternative A, and one respondent preferred a park with no change to the shoreline.

Twenty-six (26) respondents provided their views on what amenities they would like to see included in a park at Petrie Island. There was broad support for the following components: picnic area, public beach, public washrooms, change rooms, drinking water tap, and fishing area. Only two (2) indicated that they would not like to have a “public beach” included. Views were mixed regarding more active recreation facilities including showers, playground structures, beach volleyball courts, wading/splash pools, and boardwalks.

Other specific suggestions from individuals included: a car top boat launch, a concrete boat launch ramp, a marina, a water fountain/spray feature (as opposed to wading pool), a designated dog area, a rowing club facility, a launch area for windsurfers, a public building to hold gatherings, an amphitheatre, a nature interpretation center, bike/recreation paths, and a better pathway connection to the residential communities south of Highway 174.

Two meeting attendees representing the interests of the First Nations peoples provided their views that more information related to archaeological resources is required and they expressed their request to be involved in the study process. A representative from Volleyball Canada provided evidence of the demand for beach volleyball courts. The Ottawa Field Naturalists Club preferred Alternative B, involving minimal change to the shoreline, and passive use park activities only.

Public Open House #2

The objective of the September 18, 2002 meeting was to present the results of the evaluation of alternatives, to present the recommended park plan, and to present the preliminary environmental assessment results. The main purpose of the questionnaire was to determine the level of satisfaction with the study results, and to solicit comments or suggestions to be considered during the finalization of the park design and environmental assessment study. Forty-four (44) surveys were completed.

Forty-four (44) responses were given to the question, “Are you satisfied with the plans for Petrie Island?” Of these, forty-two (42) or 95% were either satisfied or somewhat satisfied with the plans. Half of these respondents were “somewhat satisfied”, many of whom provided additional comments as summarized below. Only two (2) were not satisfied. Thirty-seven (37) responses were given to the question, “Are you satisfied with the preliminary results of the environmental assessment?”. Of these, only one respondent was not satisfied. Highlights of additional comments provided on the questionnaires are paraphrased as follows:

• I look forward to have a park and potential swimming beach in Orleans;
• I am disappointed that a marina, boat launch, and/or area for boats to pull up on shore is not included as part of the plan;
• I am glad to see that a marina and/or boat launch is not included as part of the plan;
• Do not over-commercialize the island;
• An inter-provincial bridge should be incorporated into the plan;
• An inter-provincial bridge should not be located near Petrie Island;
• I am concerned that the additional visitors to the island will have an affect on the adjacent wetland due to over-use, crowding, trampling, etc; and,
• I would like to see more details on the use of the proposed grass and sand areas and the possibility for uses such as disc golf, beach volleyball, ultimate, and an outdoor wading pool.

These comments will be considered during the finalization of the park plan and its environmental assessment.

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Preferred Petrie Island Park Concept Plan Document 3

Field (Beach) House Concept Designs Document 4